The history of Kazakstan has been characterized by migration. Russian colonization began 300 years ago, with the latest wave of settlers coming in the 1950s during the Virgin Lands campaign, initiated to farm previously uncultivated land. In the 1930s, people left the territory in large numbers due to collectivization and the resulting famine. During the 1940s, Germans and Chechens, among others, were deported en masse to Kazakstan, and they now contribute to the out-migration by returning to their homelands.
This out-migration increased in the mid 1990s. The principal movement is by ethnic Russians, of whom nearly one million have left Kazakstan, resettling primarily in the Russian Federation.
Another significant trend is the movement of ethnic Germans from Kazakstan to Germany. Approximately 700,000 Germans have left since 1992—more than fifty percent of the German community, which was about 1 million before 1991. Of those who remain in Kazakstan, it is estimated that sixty-five percent would like to leave for Germany.
Some people have sought asylum in Kazakstan—most recently Chechens. There were tens of thousands of Chechens living in Kazakstan before the war began in Chechnya in December 1994. Those who fled the troubles in Chechnya often live in very poor conditions in Kazakstan. They followed asylum seekers from Tajikistan and Afghanistan, who had been displaced earlier by conflicts.
Ethnic Kazaks are also moving to Kazakstan, mostly from Mongolia, but also from Iran and Turkey. Since 1991, Kazakstan’s government estimates that 200,000 Kazaks have immigrated to the republic. There is also evidence that some of them are leaving Kazakstan to return to their former places of residence.
Kazakstan has not yet developed a comprehensive set of laws or institutions
to deal with migration-related issues. It has
not signed the 1951 Convention relating to the Status of Refugees,
or its 1967 Protocol. Nor has it drafted a law on refugees or established
asylum procedures. Refugees are treated as “illegal aliens” and receive
no pensions, welfare, or housing. A Propiska (permission for residence)
is impossible to obtain except in rare cases. There is a clear need for
technical assistance to the government and programs to encourage effective
and humane migration management.
There are also human rights dimensions to these population movements. In order to build a climate of confidence for those considering departure, the government of Kazakstan should promote individual liberties, representative government, equal social and economic opportunities, and cultural pluralism. Such measures may ameliorate some of the causes of out-migration and would surely strengthen the emerging nongovernmental sector. Currently, nongovernmental organizations are highly regulated. The internationally recognized right of freedom of association should be reflected clearly in the laws and practices of Kazakstan.
A country’s most precious resource is its people. The sustained out-migration
of relatively highly skilled individuals is exacerbating Kazakstan’s social
and economic problems. Government policymakers are aware of the dilemma,
but have not taken the steps necessary to manage the situation, and population
movements from Kazakstan are likely to continue for some
time. An optimal strategy for fortifying the confidence of those considering
emigration would involve an immediate campaign
to strengthen civil society in Kazakstan. This report proposes directions
for the international community to promote such
an endeavor.
The report examines the sources of migration in Kazakstan, looking at a wide variety of ethnic communities in the country, including Chechens, Germans, Ingush, Koreans, and Russians. It also considers the in-migration of Kazaks. In addition, it aims to place migration within the context of state-building efforts in Kazakstan. The aim of this report is to promote a policy orientation of inclusiveness in Kazakstan, thereby fostering long-term stability and human security. It offers suggestions to the international community on ways to address the underlying causes of displacement, thereby diminishing the chance that existing discontent could grow into confrontation.
This report is based largely on material gathered on a mission to Kazakstan by Justin Burke, Editorial Manager of the Forced Migration Projects, who is also the principal author. He was accompanied by photographer Michael Samojeden on the trip, which took place on May 9ÿ29, 1997. The two traveled extensively within Kazakstan, visiting Almaty, Akmola, Karaganda, Shymkent, Turkestan, and Ust-Kamenogorsk. During their travels, they met with government officials, independent experts, and representatives from the nongovernmental sector. In addition, they interviewed representatives from Kazakstan’s ethnic communities. Contributions to the report by Elisabeth Socolow, a Projects consultant, and Colleen Thouez and Nadia Yakoob, Projects Summer Associates, are gratefully acknowledged.
The Soros FoundationÿKazakstan provided logistical support that greatly facilitated Messrs. Burke and Samojeden in their work. A full list of those interviewed, along with a bibliography of key sources, appear as appendices to this report.
One hallmark of an open society, of course, is the ability to debate
relevant issues from a diversity of perspectives. Given the possible sensitivity
of some of the matters addressed, we wish to emphasize that the report
does not necessarily represent the views of any person or entity, in or
outside of the Soros foundations network, beyond the author and the Forced
Migration Projects. We are fully responsible for the matters presented.
Arthur C. Helton
Director, Forced Migration Projects
April 1998