The Rising Risks of Misrule in Tajikistan


I.Overview

Tajikistan’s 25 years as an independent state have been marred by poverty, endemic state corruption and the steady narrowing of political power to a single family. Its patriarch is President Emomali Rahmon, 64, who has ruled the country since 1992 through a carefully calibrated system of patronage and brutality. With Rahmon’s current seven-year term set to end in 2020, many observers believe he is now planning to hand over power to a close family member, probably his eldest son, Rustam, 29. This transition plan is fraught with risk, however, and will play out in a country riven by internal frailties and external vulnerabilities. The outside world has few levers in this Central Asian state of 8.7 million people. But its pivotal position in Central Asia, where it borders on both Afghanistan and China, should prompt external actors, especially Russia, to engage as far as possible to avoid a new source of regional disorder.

Over the past two years, President Rahmon has cleared the political space, removing any group or individual, ally or adversary he considered a potential threat. This provides him with a powerful argument against any international or domestic political actor tempted to call for change. Other than the president and his family, there are no organised, functional political forces left. It is his regime or nothing, with even parts of his own traditional powerbase increasingly marginalised. The resentment this produces could lead to a destabilising and potentially violent internal backlash. The fallout likely would be felt throughout Central Asia.

The international community has few options. Central Asian neighbours, including Russia and China, should focus on securing the vulnerable Tajik-Afghan border and China in particular should take steps to help revive Dushanbe’s failing economy. The European Union (EU), an important donor to Tajikistan, should push for an orderly transition even if devoid of democratic credibility. In taking these steps, all parties need to bear in mind the one overriding factor that constrains their influence: for now, Rahmon’s own personal interests dominate the country’s agenda.

II.Internal Uncertainties

A.Family Feuds

A key question for Tajikistan today is whether President Rahmon will forego power in 2020 and, if he does, whom he will choose as a successor. Rahmon, still relatively young at 64, is putting a transition plan in motion, if not for 2020 then later. Constitutional amendments passed in 2016, particularly one that lowers the president’s minimum age, suggest Rahmon’s son Rustam is the favourite.Rahmon has been pushing Rustam into high-profile, powerful posts, such as that of mayor in the capital city of Dushanbe. If Rustam joins the senate as its chairman after he turns 30 in December 2017, as analysts and media have speculated, he could become president should his father die or became incapacitated.

This scenario is far from certain, however. Rustam faces internal competition and is hampered by his own lack of skill as a government administrator and manager of patronage networks. But he has consolidated informal power over the security services, which ultimately will be the decision-makers in the event of a contested succession. Moreover, although Western observers and members of the urban intelligentsia often describe Rustam as reckless, aggressive and lacking leadership qualities, the pool of potential successors is small.

That pool consists of family members. Media speculation focuses on internal rivalries, mentioning Rustam’s sister Ozoda, 39, who runs the presidential administration and is reputed to be competent. She and her banker-businessman husband Jamollidin Nuraliyev at times are mentioned as a possible power couple, though Tajikistan’s patriarchal society works against her. Conflicts involving members of the extended family and could also trigger instability in the context of a succession. Rustam has struggled with his uncle (the president’s brother-in-law) Hasan Asadullozoda for control of revenues from the Tajik Aluminium Company (Talco), which provides up to 70 per cent of the Tajikistan’s foreign currency earnings. Other family members feature in local conflicts over state resources. Without careful management, these internal family feuds could be destabilising, especially at a time of uncertainty over the presidency’s future.

B.Local Rivalries

The president’s regional power base is showing signs of disaffection. President Rahmon’s winning faction during the civil war (1992-1997) was based in Kulob, part of the cotton-growing area of Khatlon, on the country’s southern border with Afghanistan. Kulobis consequently dominate the most lucrative businesses and hold the most important positions in security structures, at the expense of those from other regions who feel they occupy subservient positions. That circle of power has narrowed, however, as money and resources have dwindled. The effect has been to sharpen fault lines among Kulobis, undermining the political unity that had allowed them to prevail. For example, Kulobis from other parts of Khatlon are losing out to Kulobis from Rahmon’s hometown, Danghara. This is feeding anger among many previously loyal supporters, who may not need much persuasion to take a stronger stance against the Rahmon clan.

The trouble brewing in Rahmon’s loyalist heartland is a bellwether for tensions in Tajikistan’s politically peripheral regions. Any perception that President Rahmon’s power is about to weaken could tempt areas suspicious of Dushanbe’s central power – such as the eastern area of Rasht and the mountainous Gorno-Badakhshan Autonomous Oblast (GBAO) – to take further steps toward autonomy. Rasht has long been known for its distrust of Dushanbe’s authority. Former United Tajik Opposition (UTO) members there have used force to retaliate against efforts by Dushanbe to enforce its writ, leading to killings of Tajik security and military forces.In GBAO, too, infringements on local autonomy resulted in bloody flare-ups in 2012 and 2014.

Clashes in both Rasht and GBAO have embarrassed Rahmon, demonstrating the limits of his power. His response to the unrest in both regions was to cut deals and co-opt leaders by granting access to resources and other forms of patronage. Given Tajikistan’s weak finances, this is far from sustainable. Moreover, Rahmon’s successor may not have the skills required to navigate a fraught political environment.

C.Economic Troubles

Tajikistan’s systemic economic problems are part of the reason government resources are shrinking. Many sectors are suffering: confidence is low in Tajikistan’s currency; remittances from Russia decreased in 2016; the real-estate market is crashing; and half of all bank loans are non-performing. The Tajik government this year issued high-yield bonds to raise revenue, which has allowed them to avoid working with international financial institution or donors who ask for reforms.

The government points to the Russian economic crisis as the primary cause of its woes, but fiscal mismanagement and predatory economic policies have also played a significant role over the past decade. Diplomats say the lack of accountability remains a major hurdle for international financial support. In 2016, the Tajik government declined an offer of up to $200 million in the form of grants and loans from the World Bank, because of the pre-conditions attached, which involved reform of the banking sector, currently largely controlled by Rahmon family members and associates.Nor did the EU or International Monetary Fund (IMF) provide financial support to the Tajik budget in 2016. Tajikistan’s successful foray into the bond market arguably has weakened the leverage of donors seeking to impose political conditionality on aid and loans.

The public bears the brunt of these persistent economic difficulties. A third of Tajikistan’s population is undernourished and malnutrition is the underlying cause of about one third of child deaths, a higher proportion than in any of the other former Soviet republics. But the economic crisis also affects the corruption and patronage networks behind Rahmon’s rule. Citizens and private businesses increasingly are unable to pay bribes to law enforcement officers and government officials. These officials, in turn, have become increasingly aggressive as they struggle to pay debts incurred to finance the bribes they had to pay to obtain their jobs. In short, economic realities are placing an increasingly fragile power structure under strain, raising questions about its long-term viability.

D.Migration

Migration is the main outlet for Tajiks suffering from social, political and economic tensions. More than a million Tajiks live and work in Russia, which helps defuse a potential source of instability by absorbing working age men who might otherwise be under- or unemployed at home. But there is a flip-side as Moscow could force the migrants to return, which gives it important leverage over the Tajik president and serves as a considerable constraint on his dealings with Russia.

Moscow’s priority is to have a compliant partner and an ongoing military presence in Tajikistan. A senior member of the Islamic Renaissance Party of Tajikistan (IRPT), an opposition party banned in October 2015, said, “Russia tolerates, not supports, Rahmon, because there are no other options really … whether Russia will support his eldest son, Rustam, [in his succession bid] will depend on how Rustam behaves”. Although it seems unlikely at this stage, Moscow could threaten to expel Tajik migrants should bilateral relations deteriorate, presenting the current or incoming president with an enormous crisis.

Emigration from Tajikistan also concerns the EU as the number of Tajik asylum seekers is rising. In 2016, 3,230 Tajiks applied for asylum in EU countries, up from 1,160 in 2015 and 605 in 2014.An IRPT member living in Europe said, “if something happens in Tajikistan, Tajik refugees will come to Europe. It is cheaper and easier for Tajiks to get to Europe than for Syrians”. European officials express fears that Russia could use an influx of Central Asian migrants to heighten tensions over migration in Europe.

III.A Jihadist Threat?

A.Afghanistan

For years Tajikistan has confronted the risk of jihadist spillover from across its 1,400km border with Afghanistan. The emergence of the Islamic State of Iraq and the Levant-Khorasan Province or the Islamic State-Khorasan (IS-K), an affiliate of the Islamic State in Iraq and Syria (ISIS), has led both Russian and U.S. officials to express concern that the movement may reset its priorities northward and attempt to make inroads into Central Asia. The presence of Central Asian militants within IS-K ranks, albeit as a minority, aggravates such fears. So too does increasing instability in Afghanistan’s north east, close to the Tajik border.

The immediacy of the threat remains open to debate, however. Although the situation in northern Afghanistan is deteriorating, most incidents along the Tajik-Afghan border appear to be related to smuggling rather than incursions into Tajik territory or attempts to attack the Tajik state. Though its emergence is worrisome, the IS-K is still dwarfed by the Taliban, which remains by far the largest armed opposition group and whose leaders express no territorial interest beyond Afghanistan’s borders. The Taliban arguably has been the main check on ISIS’s growth in Afghanistan, often moving quickly to crush IS-K factions. Moreover, the core of the IS-K remains in eastern provinces closer to Pakistan than Central Asia. Whether the small militias in the north that claim to be part of IS-K have direct operational ties to forces in the east is unclear. Nor is it clear, for now, that the Central Asian militants fighting alongside the Taliban, including in the north east, have Tajikistan in their sights.

Tajikistan’s inherent weakness and porous borders make it vulnerable, however. Traffickers have been moving large volumes of drugs across the Afghan border for over two decades, providing revenue to security officers who, in turn, support Rahmon and his inner circle. The governing elite’s role in cross-border narcotics smuggling may help it manage the border informally for now, but in the longer-run such activities undermine efforts to secure it. So long as corrupt officials have an interest in keeping the border porous, there is a danger that militants – not just drugs – will spill over from Afghanistan into Tajikistan.

B.Radicalisation

Under the guise of combating jihadists, authorities in Dushanbe have quashed internal dissent and repressed Islamic practices. The government restricts its citizens’ ability to display piety and publicly adhere to Islamic norms. Police have forcibly shaved men’s beards, and registered or even arrested women who wear hijabs. The government also forbids anyone under the age of eighteen from attending a mosque and prohibits anyone under 35 from making the pilgrimage to Mecca.

Tajiks resent these policies, which apply only to certain citizens. The economic or political elite faces few such restrictions. Young members of criminal gangs and the sons of government officials are seen wearing beards