Политология / региональные политические процессы

Ospanova A.N., Kilybayeva P.K., Moldaliyeva A.I., Akhmet A.S.

Astana, Kazakhstan

Regional security in Central Asia: the factor of external powers

During the analysis of the security architecture of Central Asia there is emerged a distinct regional structure in Central Asia with its unique patterns and interactions with necessity to closer analysis in a regional perspective. However, till the end of the Cold War, and dissolution of Soviet Union Central Asia has been overlooked from the regional perspective. And anybody couldn’t find a theoretical analysis focusing on the regions. This lack of attention was mostly because of the principle preamble of the predominating realist paradigm that focused on such a hard power security themes, as deterrence, coercion and escalation, causes on stability, arms control and the importance of conventional forces and limited war in the context of the nuclear age, what can be called as Cold War atmosphere implications.

At the time of the collapse of the Soviet Union and until 1993 the concept of Central Asia as a region does not exist, respectively, there was no security cooperation ideas, covering exclusively Kazakhstan, Kyrgyzstan, Tajikistan, Turkmenistan and Uzbekistan. Comprehension of the current situation happened in the wider framework - first in the “reformed Union” format, and then - in the CIS format. A reflection of this was the signing in 1992 of the Collective Security Treaty Organization. The original agreement was signed by the heads of the six CIS countries - Armenia, Kazakhstan, Kyrgyzstan, Russia, Tajikistan and Uzbekistan. In 1993, the instruments of accession to the Treaty was signed by Azerbaijan, Georgia and Belarus. The Treaty entered into force on 20 April 1994 for five year term.

In terms of safety the key points of the agreement are the following:

- “States Parties reaffirm the obligation refrain from the use or threat of force in international relations. They undertake to allow all disputes among themselves and with other states by peaceful means”;

- “If one of the member states will undergo aggression by any State or group of the state, it will be considered as an aggression against all States parties”.

Thus, substantially the Collective Security Treaty affected not so much collective security, as has been aimed at ensuring the collective defence. If collective security involves the formation of a system in which each of its member states, recognizing that the security of one is the concern of all, agrees to join a collective response to any threats and breach of the peace, the collective defence - a mechanism, States Parties that support the defence of any state party if it is attacked by another state which does not belong to the organization.

Countries of this region, the newly independent states understood the importance of the early security foundations building, which could be the reliable shield for the region. Creating strong defence system in Central Asia will reduce external threats and ensure security in the region. Military cooperation of Central Asia countries was historically, politically conditioned and most profitable for their national interests. Scientists such as Zh.M.Medeubayeva, A.T.Serikbayeva consider, “Multivector foreign policy pursued by the states also encourages distancing from solving urgent problems in a regional format” [1].

Stake in the formation of the security space The Collective Security Treaty was made on the format of the military sector, despite the fact that the possibility of securitization of these threats in the 1990s was extremely limited. Accordingly, the Collective Security Treaty does not mean the formation of a collective security system in any format of the CIS, nor in any narrower format.

In the mid-1990s, the importance of the Treaty began to decline, at least in connection with the two processes:

1. Consolidation of the concept of “Central Asia” as a marker indicating a coherent regional grouping and, consequently, the formation of the perception of a large part of the states - members of the Collective Security Treaty as “extra-regional forces”.

2. Gradual actualization of the security issues that are not directly related to the military sector (delimitation and demarcation of borders, establishment of border regime; water management issues). Therefore occurred problematization of the attraction of “non-regional powers” to resolve them.

During 1990-2000 countries of Central Asia have been suggested other formats of international multilateral co-operation, which are often regarded as elements of a regional security system: the program “Partnership for Peace”, the SCO and CSTO, based on the involvement of non-regional forces and retain the majority of problematic points related to this factor.

The situation of regional security in Central Asia largely not determined by a regional or quasiregional formation, but with the fact that Central Asian countries are protected from traditional threats of security (“territorial disappearance”) with rules and principles of the modern system of international relations [2, p. 98], in other words – with its structure. Moreover, all the Central Asian states not only declared adherence to these norms and principles, but also implement them in practice.

This suggests that in the medium term, a key factor in determining the question of regional security in Central Asia, will further the transformation of the structure of international relations at the global (change of norms of international law and, above all, the actualization of the issue of humanitarian intervention, based on the erosion of the concept of national sovereignty and non-interference principle), and regional level (a change of attitude of the Central Asian states to modern standards of international relations). In other words, there will be a crucial change in the security regime – “a set of implicit or explicit principles, norms, rules and decision-making procedures, defining the expectations of actors in international relations” [2, p. 122]. In our case - operating in Central Asia.

Thus, the question of regional security system could not be considered separately from the analysis of the security regime.

The starting point of search should base on the formation of a regional security system with a theoretical (scientific) understanding of the problem with the following points:

1.                       Central Asia is the periphery of the modern system of international relations, in which the interests of extra-regional powers are not manifest and, therefore, do not overlap to a significant extent. Undoubtedly, this situation may change. For example, during the withdrawal of NATO troops from Afghanistan, or in the case of the military campaign in connection with the contradictions that emerged in Iran. However, these changes will in any case be temporary, as it was in the early 2000s during the anti-terrorist action deployment coalition in Afghanistan. Thus, the presence of extra-regional powers in Central Asia are always temporary.

2.                       The Central Asian states - the so-called weak states. In this case, it is important to bear in mind that we are talking about the concept of strength and weakness of the state in terms of the theoretical analysis of security issues. In other words, this division does not have a different nature, and is exclusively concerned with the structural features of the state. The strength / weakness is fixed in at least three measurements [2, p. 187]:

- Infrastructural capacity - the ability of government institutions to implement the most important tasks and set policy on its territory;

- The possibility of coercion - the ability and willingness the state of calls to use force against its power;

- Societal (identification) is the degree of relatedness in which the population identifies with the nation-state and receives its legitimate role in his life.

The main threats faced by the weak states are internal:

- Calls on the part of various social groups, such as ethnic groups, religious movements, ideological groups or local self-defence units;

- Steady erosion of public institutions and processes of the increase of lawlessness and a possible collapse of public institutions can lead to a power vacuum in which the ruling elite has become one of several groups fighting to fill the void, and claiming the formal powers of the State.

A key challenge faced by weak states, insecurity dilemma - a situation in which national security is defined as regime security, confronts its incompatible with the requirements of various social forces. At the same time, “the more elite (modes) weak states seek to establish good governance, the more they provoke calls for its power on the part of influential social groups”.

Central Asia cannot be considered as a fully independent regional security complex. In the best case, this - unstructured space, which acts as the insulator between neighboring complexes [3, p. 336-359].

The source of a number of "non-traditional" security threats, at least, the issues that are actively securitized in Central Asian countries, namely Afghanistan, submitted beyond the regionalization of Central Asia. Respectively the impact that the Central Asian countries can have on Afghanistan, is extremely limited. Thus, if in Central Asia raises the question of the feasibility of a regional security system, it’s bases can only be created with structural reformatting the region.

Central Asian countries are forming a security policy based on military doctrines and annual messages of the leaders of these countries. According to the military doctrine of the Republic of Kazakhstan country has consistently advocated the establishment of a system of international relations, when the value of military force will be minimized and the settlement of disputes between States will be carried out with the use of political, diplomatic and legal instruments. The Republic of Kazakhstan considers that no state is its potential enemy [8]. Military and political cooperation of the CAR countries in the 2000s may be characterised as follows: attempts of countries of Central Asia to create security system without the participation of non-regional actors in the new century have not been continued in view of global geopolitical conjuncture and complexity of the overall situation in the region as a result of influence of external and internal factors [4, p. 122]. The main objectives of the Republic of Kazakhstan policy are strengthening and development of international and regional security, political stability in the country, the prevention of armed conflicts and to maintain readiness of the Armed Forces, other troops and military formations of the armed defence of the Republic of Kazakhstan and its allies, as well as in the prevention of security threats and strengthening the stability the country cooperates:

- with CIS in the framework of the CSTO, as well as on a bilateral and multilateral basis.

- At the regional level: with the countries of Central Asia, with the member countries of the SCO and the CICA.

- At global level with all the countries members of the UN on the basis of international law.

The priority areas identified:

- The development of cooperation with the CSTO;

- Enhanced cooperation with NATO in the framework of “Partnership for Peace”;

- The strengthening of bilateral cooperation with Russia, the US, China and the EU;

- Participation in military forces in international peacekeeping operations under the UN aegis.

In accordance with the national security concept to ensure the military security of Kyrgyzstan it  provides the establishment and development of partnership relations with the international military-political organizations and states both at the international and regional level. Cooperation at the regional level through the prism of the interaction with the CSTO, SCO, as well as on a bilateral and multilateral basis with the CIS countries. At the global level with all the countries whose policies do not contradict the UN Charter and the interests of Kyrgyzstan. According to this concept, the Kyrgyz government has identified the following key areas of prevention and neutralization of threats:

-                      The formation of border perimeter security and good neighbourliness zone countries on principles of equal security, respect for sovereignty and territorial integrity within its existing borders;

-                      The establishment and strengthening of zones free from all weapons of mass destruction;

-                      Formation of the necessary international legal framework for cooperation with the organizations and the world community in combating international terrorism, extremism and separatism;

-                      Improving the system of immigration, border and customs and sanitary control.

Concerning to the Kyrgyz official leadership opinion, which is reflected in the concept, inter-State relations in Central Asia characterized, on the one hand, as the desire to integrate on the other as the competition in the struggle for survival due to the process of national self-determination, finding ways of political and economic integration into the world community [5].

According to the Kazakh researcher I.A.Chernyh positions of the two countries is determined by the fact that they cannot ensure their military security without reliable contacts with external actors such as Russia, China and the United States. On the other hand, they cannot relax due to the different policy of other Central Asian states (in the first place - with Uzbekistan). Therefore, Kazakhstan and Kyrgyzstan always offer and participate in the models of non-regional powers, thus ensuring, on the one hand, the balance of them, and on the other side to balance military capabilities and the regional ambitions of Uzbekistan. Thus, the political leadership of the two countries committed to providing military security, balancing between world and regional power centers [6, p. 220].

In official documents of the Republic of Uzbekistan it is stated the need to create a unified system of regional security in Central Asia, under which the country will play a leading role and will be able to declare the status of a regional leader [10, p. 37]. However, despite calls for the integration of countries in the region they have mutual contradictions on a number of issues of regional security, including border issues between countries, water and energy disputes and ethnic divisions.

With the declaration of permanent neutrality in 1995 [7] Turkmen leadership has repeatedly noted the importance of peaceful cooperation, non-interference policy in the affairs of other countries and complete disarmament. As a neutral country, Turkmenistan is not a member of any military alliance or bloc, because he seize the guarantees of security from the UN. Representatives of law enforcement agencies are taking part in various meetings of the CIS as observers. The only exception is the participation in the work of the Coordinating Committee on Air Defence under the Council of Defence Ministers of the CIS member states.

The geopolitical situation of Tajikistan, its military-strategic position, the low probability of a large-scale war and the difficult economic conditions of the country virtually eliminates the need and the opportunity to advance the creation of  a powerful groups of armed forces in its geo-strategic areas. Taking into account the serious threat of military conflict, not only for Tajikistan, but for all Central - Asian region, it is necessary:

-                      Adhere to the principles of peaceful coexistence, political solution of regional and international disputes and conflicts, respect for the sovereignty and territorial integrity of States, non-interference in their internal affairs and inviolability of state borders;

-                      Deny war, of use of force or threat of force to achieve political, economic and other purposes;

-                      Condemn all acts of international terrorism, political extremism, separatism and drug trafficking.

Thus the influence of external factors on the formation of a single regional Central Asian security is very high. According to the opinion of Kyrgyz researcher M.Imanaliev, one of the most important issues facing the Central Asian countries - is a matter of choice of values. The inherited and acquired the political, social, cultural and ideological identity is difficult to determine the choice of the appropriate niche for the individual countries and the region as a whole, which meets the needs of people living in the states of Central Asia, and the interests of the international community.

The Central Asian states attempts to join forces in the military – political sphere was initially very successful. In January 1994, the leaders of three Central Asia countries signed a treaty on the formation of the Central Asian Union, which objectives were the creation of economic and security space of countries in the region. In the first half of the 90s CAU were focused on solving economic problems, although the Union was essentially a geo-economic and geo-political system characterized as a condition for increasing security resource of the regional association actors. Absence of a direct military threat to the end of 90s predetermined nature of interstate documents adopted by Kazakhstan, Kyrgyzstan, Uzbekistan [1, p.8].

Agreement on military – technical cooperation between the three republics, signed in the same year consisted of sixteen articles. Military-technical cooperation in the region had been gaining the real. The adoption of this document was beginning of military cooperation between the states and participants of Central Asia Union. Such a mechanism of insuring security had never existed in Central Asia’s history. The agreement on military – technical cooperation between the Central Asian countries was the only document until the political situation had become worth in the second half and the end of the 1990. The governments tried to overcome internal and external threats, risks, relying upon this document and it had significant role in that period [1, p.8].

In spite of the fact that some politicians and analysts had critically evaluated the Union asserting that the CAU has a few prospects of becoming influential force in Central Asia, the CAU had continued working since 1990s with some difficulties on the stage of Central Asian region.

The document was a new step of generating a need for collective security system in Central Asia. Kazakhstan, Kyrgyzstan and Uzbekistan in the framework on the Collective Security decided to develop cooperation and firstly provide comprehensive support to prevent threats to independence and sovereignty, territorial integrity, conduct an independent policy, In the case of situation which according to one of the High Contracting Parties, constitutes a threat of armed attack by other states, the High contracting Parties shall immediately hold appropriate consultations with each other both on a tripartite basis, and within the framework of international organizations to take measures for the peaceful settlement of this situation, as well as common defense.

Realized the complexity of an independent military integration, Kazakhstan, Kyrgyzstan and Uzbekistan began to cooperate with external actors for more specific implementation plans for joint defense in the region, preventing the threat of war and preserving peace. Most experts consider that the main reason for the inability of Central Asian countries to ensure a regional security system is their unwillingness to work closely with neighbors to establish regulated environment for interstate cooperation. Multi-vector foreign policy pursued by the states also encourages distancing from solving urgent problems in a regional format. The desire of maneuvering between the world actors in order to obtain benefits for the country and keep at least the minimum share of independence, sadly led primarily to alienation from its neighbors [1, p.9].

Military and political cooperation of the CAR countries in the 2000s may be characterized as follows: attempts of countries of Central Asia to create security system without the participation of non-regional actors in the new century have not been continued in view of global geopolitical conjucture and complexity of the overall situation in the region as a result of influence of external and internal factors. It should be specially said about such factor as the misregulating of the intergovernmental relations in the CAR, in the field of which new problems, accumulated on the traditional problems inherited from the Soviet period. There exists distrust to each other between countries. Thereby the possibility of close cooperation of the region’s countries in military and political aspect to maintain regional security gave way to the creation and strengthening of such system by external, international and regional organizations.  

Military and political cooperation of region states become fully to concentrate in the framework of multilateral structures with the direct participation of Russia, China and Western countries by 2003-2004. The process of formation of security system in the CAR made for the construction of the architecture of security, where the pillars are the CSTO, SCO and NATO.

         However, the allies agreed on the list of foreign policy issues to speak with one voice and it may be noted as an important positive step in the evolution of organization. In 2011 leaders of CSTO’s country-members agreed to place military bases of third powers only with the consent of the other members of CSTO. It is necessary to start institutional reforms, to formulate strategy, to start practical steps rather than written declarations that don’t get their realization in political life. Obviously, it is necessary to make the organization attractive to participants, to extend the number of countries that wish to join organization, not to leave it [1, p.13].  

During the period of radical reconstruction of the structure of international relations system the Central Asian states did not have a significant military and economic potential, and none of the countries has not been able to claim the role of a regional leader. Due to its geopolitical location Central Asian countries are in the sphere of influence of other centers of power - Russia, the US and China. The importance of the Central Asian region in the political interests began to increase, according to a US senator A.Krenston’s words: “Central Asia will play an important economic and political role. The US is also considering the region of barrier against the infiltration of Islamic fundamentalism from Afghanistan and Iran” [8, p. 227]. These reasons determined the active participation of Russia and USA in strengthening security in Central Asia. This concern was due to the desire of countries to prevent the “export” of terrorism, extremism and drug trafficking on its territory. In addition to these reasons, transit and energy potential of Central Asia may become a part of Europe and Asia. The development of such a dialogue between civilizations was evident in the establishment of regional institutions in the field of security, as the SCO, CSTO and CICA. Analysis of these structures shows that this is not just a mechanism for the development of regional security, it is primarily Eurasian security mechanisms.

Military-political cooperation of Central Asian countries to promote regional security, began with the Shanghai Cooperation Organization (SCO). SCO is one of the most effective Asian security mechanisms, with the inclusion of Central Asia. Initially, the establishment of the SCO was linked to the question of delimitation of borders in Central Asia and China, as well as providing confidence-building measures in border areas. 3 post-Soviet countries in the face of Kazakhstan, Kyrgyzstan and Tajikistan with the legal successor of the Soviet Union the Russian Federation made the joint delegation in Shanghai in 1996 and signed an agreement on confidence-building in the military field in the border area, which was named Shanghai Declaration”. The declaration consists of 16 articles, with the following objectives:

- Promote and develop long-term relations based on good neighborhood and friendship;

- Renunciation of the use or threat of force;

- The rejection of unilateral military superiority;

- The mutual reduction of armed forces;

- The strengthening of confidence-building measures in the military sphere.

The development of the military cooperation was agreed in Article 13, under which it was decided to hold a meeting of experts to discuss the points of the agreement [9]. In 1997 in Moscow, the countries signed a new agreement on mutual reduction of armed forces in the border area, concluded for a period up to 2020. This agreement will contribute to the development of mutual trust and security of the former borders of the Soviet Union and China, and has become the basis for further constructive cooperation. Participation in the organization of such two countries, as Russia and China - permanent members of the UN Security Council, allowed the organization to receive worldwide recognition de facto rather quickly and get out not only to the regional level, but also to the international level. Thus, it was possible to strengthen relations with countries bordering not only with each other but also to other countries not members of the “Shanghai Five” (for example, the occurrence of Uzbekistan into it, not bordering Russia and China). Uzbekistan's participation in the SCO helped to strengthen its regional policies and to remove from the suspicion of “opponent” of the collective security system in the region.

From the geopolitical perspective it meant that the SCO will not be engaged only to Asian security space, but will cover all the Eurasian continent. In the opinion of the American political scientist and prominent statesman Zbigniew Brzezinski “Union of Russia and China is dangerous for US policy in Eurasia” [10, p.134].

In 2001, the heads of 6 states signed the Declaration on the establishment of the “Shanghai Cooperation Organization”, where determined access to the global level of the maintenance of security and dialogue between civilizations and ultimately, “the translation of the SCO mechanism to a higher level of cooperation” [11, р. 22-29].

According to the Kazakh researcher M.T.Laumulin SCO was originally created as an openly anti-American project. Its bearing axis was military-technical cooperation between Moscow and Beijing” [12, p. 258] “According to the words of the President of Uzbekistan Islam Karimov, - Russia and China - all these years of geopolitical game, each side tried to extract from their relations with the US and the West in their own advantage. In these circumstances, the SCO was needed first of all to “demonstrate their flag” in Central Asia to Americans” [12, p.259].

As for SCO, its activities differently evaluated by both Russia and China: for Russia Shanghai Cooperation Organization is a structure of coordinating efforts of its members in the field of security: China regards the SCO as a bridge of trade and economic cooperation with the countries of Central Asia. For China economic cooperation with Central Asia means, primarily, the development of ccoperation in the energy sphere. China wants to diversify oil supplies for its booming economy. For China, it was important to find an alternative to oil and gas supplies to traditionally unstable Middle East. Central Asia in the circumstances , it is more reliable supplier in terms of security of hydrocarbon supply routes. The countries of Central Asia to China are not only a “strategic rear,” but also “strategic reserves” in terms of energy security.

Cooperation between PRC and Russia within SCO is one of the important factors providing strengthening and development of the organization. But, in the face of differences  in understanding the aims and function of SCO between RF and PRC it can be risk of intensification of political strife for sphere of influence between two powers. At the same time as for Russia as for China it is extremely important to constrain the competition and to develop mutually beneficial cooperation.

Cooperation in the safety sphere in SCO generally has declarative character,  in other words, is limited with adoption of conventions on fight against terrorism, separatism and extremism. Unfortunately, it is possible to summarize that forms of cooperation are reduced only to exchange of information, creation of general databases and reduction to a consensus of the participating countries on a number of theoretically important questions in the field of world politics and the international relations. In the field of military defense it is possible to consider a real practical action carrying out joint antiterrorist doctrines, in which not all the member states participated [1, p.14].

Active participation of Central Asian countries on regional security system can be seen on the example of the creation of CICA. The initiator of the creation of the security mechanism in Asia was the President of Kazakhstan, Nursultan Nazarbayev, who proclaimed the idea on the 47th UN General Assembly in October 1992 . According to K. Tokayev idea of establishing the CICA was “a logical continuation of the security policy of Kazakhstan” [13, p. 32]. Activities of region countries on CICA formation took quite a long time and was complicated by a variety of problems.

The basic principles of the functioning of the CICA mechanism have been proposed by Kazakhstan and supported by the other members of this forum [52, p. 130]. One of the main threats included on the agenda of the CICA is the issue of non-proliferation of weapons of mass destruction. At the 48th UN General Assembly President of the Republic of Uzbekistan Islam Karimov put forward the idea of the formation of a zone free from nuclear weapons in Central Asia [14, p. 134].

Also, an important aspect of the CICA activity is to establish contacts and relations with regional and international organizations to support joint efforts to strengthen peace and security in Asia. The result of efforts to develop relations with other organizations, is signing memorandums with various international organizations. Special attention deserves a memorandum of understanding between CICA and the SCO in which the parties cooperate on security issues.

Over the past twenty five years the value of Central Asia in world politics has increased significantly. Therefore, Kazakhstan, Uzbekistan, Kyrgyzstan, Turkmenistan and Tajikistan entered into the number of priority countries in foreign policy of great powers in the world.

To the formation of the policy of main geopolitical players in Central Asia influenced several key events in the world, such as the disintegration of the Soviet Union, the terrorist attacks in September 2001, the military events in Afghanistan, Iraq, the status and strained relations with Iran.

In addition, in the foreign policy of the world powers in regard to Central Asia can be traced specific differences and highlighted the stages that are typically associated with periods of leadership of individual presidents. If in the United States we can say about the governments of President George HW Bush, Bill Clinton, George W. Bush and nowadays two terms of Barack Obama’s presidency, in Russian Federation, we can consider the periods of the presidency starting with Boris Yeltsin, Vladimir Putin, Dmitry Medvedev, and then, since 2012, the term of Vladimir Putin again.

Ensuring regional security is the main agenda of many organizations operating in the former Soviet Union, particularly in Central Asia, CSTO, SCO, CICA. For such major powers as Russia and China, they are mechanisms for coordination of decisions taken jointly in the CA region. Despite the fact that, formally, these organizations pursue different goals, they often duplicate each other's actions. Initially, three projects of regional security have been established in the framework of the CIS in Central Asia: unified air defense system, joint peacekeeping operations and anti-terrorist structure and functions of the CSTO air defense system. This circumstance leads to the conclusion that the function of the CIS in the sphere of security and partially performed in other organizations. In the future, security issues in Central Asia will be on the shoulders of the CSTO and the SCO member countries. SCO as primarily reflects the security strategy in Central Asia not only Russia, but also China.

According to British researcher on regional security B.Buzan “Central Asian region refers to a separate set of regional security, geopolitical maneuvering in the region has a unique position, which distinguishes it from other parts of the world. Internal and external actors compete in the “new great game” affraying of  the influence, and play challenging and unstable strategic games” [15, p.436]. If to consider Central Asia as a new set of regional security, able to link Europe and Asia for the solution of common problems, to further the formation of regional security requires the development of inter-regional cooperation, both in Europe and Asia.

This year will be an important stage in the work of regional institutions in the field of security and cooperation. In 2016 expected number of important summits and meetings which will discuss topical issues of regional security, the SCO summit and the OIC Council of Foreign Ministers in Tashkent, the Caspian summit in Astana, the summit of the Council of Cooperation of Turkic Speaking States (CCTS) in Kyrgyzstan. It is also expected to intensify regional dialogue platforms in the format of "C5 + 1" with the US, "EU-Central Asia" and "Japan Central Asia".

In general, it should be stated that the formation of a regional system of international relations in Central Asia objectively presupposes the existence of different types of relationships and vectors of different directions. In Central Asia there is a discrepancy in the understanding of their interests, and the strategy and prospects of geopolitical development in the region, which is manifested both in terms of the CIS, and in the development of relations with foreign states. At the same time, security and development challenges require management to the Central Asian states to overcome the contradictions, to find various forms of compromise, diplomacy to improve co-operation and to establish the best options for bilateral and multilateral relations.

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