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In September 2023, Azerbaijan invaded the disputed territory of Nagorno-Karabakh. It waged a ruthless war against the Armenian civilian population. Starvation and violence forced 100,000-120,000 Armenians to flee. This fact has been confirmed by reports from the International Court of Justice (ICJ) and Freedom House.

The expulsion of the Nagorno-Karabakh Armenians has caused great concern in Switzerland. Both chambers of the Swiss Parliament therefore voted by a large majority in favor of Motion 24.4259. It instructs the Federal Council to organize an international peace forum on the Nagorno-Karabakh conflict in order to "facilitate an open dialogue between Azerbaijan and representatives of the Nagorno-Karabakh Armenians, conducted under international supervision or in the presence of internationally relevant actors, in order to negotiate the safe and collective return of the historically resident Armenian population."

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Violation of international law

• The expulsion of the Nagorno-Karabakh Armenians is a serious violation of international humanitarian law. The Federal Department of Foreign Affairs (FDFA) explicitly lists "attacks against the civilian population" and the "unlawful expulsion of the civilian population" as war crimes on its website on international humanitarian law.

• The expulsion of the Nagorno-Karabakh Armenians violated two binding orders of the ICJ. Following the expulsion, the ICJ also stated in a binding order of November 17, 2023, that Azerbaijan "must ensure that persons who left Nagorno-Karabakh after September 19, 2023, and wish to return to Nagorno-Karabakh can do so in a safe, unhindered, and expeditious manner."

• Before the expulsion, the population lived in the de facto Republic of Artsakh, which, despite its lack of recognition, was protected under international law. Azerbaijan violated these obligations through blockade, violence, and expulsion. In such cases, under international law, the right of self-determination of the affected population outweighs the territorial integrity of the aggressor.

 

Why haven’t the refugees been able to return until now?

• Although Azerbaijan claims to allow the return of internally displaced persons, there is no evidence to date of mechanisms or guarantees to ensure safe, voluntary and humane returns.

• The fact that the issue of return was excluded from the bilateral negotiations underscores the urgency of finding alternative means of representation. In the current situation, without an international peace forum, the affected population finds itself in a vacuum without a say in shaping its own future.

• Without assistance, these people risk being permanently uprooted, their cultural identity erased, and their plight forgotten. Allowing this to happen would undermine international principles of justice and human rights.

• Azerbaijan is also not concerned about the 120,000 Armenian refugees because it expects them to emigrate to the West – including Switzerland. It cannot be that Switzerland supports regimes that are displacing entire populations while simultaneously shifting the costs of development aid and migration onto the West. Switzerland and Europe must send a signal to the countries of the region: The problems must be solved where they are caused.

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Why is international mediation necessary?

• The Karabakh Armenians' demand for return can only be met through international mediation. Bilateral negotiations between Armenia and Azerbaijan offer no alternative given the threat of military escalation. While Azerbaijan, in its position of (militarily) strength, continues to make demands on Armenia, it is impossible for the Republic of Armenia to demand the Armenians' right of return to Nagorno-Karabakh without risking further aggression.

 

Why is Switzerland suitable for the role of mediator?

• Expulsions and policies of conquest must not be part of the international order. According to the Swiss Foreign Policy Guidelines, Switzerland is committed to "compliance with international humanitarian law in specific conflict situations." Good offices and mediation are two tools at Switzerland's disposal to promote peace while simultaneously protecting the rights of displaced populations.

• Swiss mediation is in keeping with the tradition of good offices and neutrality. In the 2009 Zurich Agreement, Switzerland mediated between Turkey and Armenia to restore bilateral relations. Abandoning the offer of good offices would contradict previous actions and Swiss offers of talks in the Middle East conflict and the Russia-Ukraine war. It would rightly be perceived by foreign countries as partisanship and would damage the credibility of Swiss foreign policy.

• Switzerland can act as a neutral actor because its economic interests are hardly affected by the mediation efforts. Azerbaijan ranks only 91st on Switzerland's list of trading partners. Trade volume with Armenia amounted to only CHF 70 million in 2022.

• Switzerland enjoys great trust both in the region and internationally – a decisive advantage for successful mediation work.

 

What connects Switzerland with Nagorno-Karabakh?

• Switzerland and Armenia share a deep international friendship that dates back to the time of Christian persecution in the 19th century and the Armenian genocide. Unfortunately, Christian minorities are currently experiencing increased persecution not only in the Caucasus, but also in the Middle East and Africa. Islamist movements and dictatorships threaten their existence. The advocacy of Western countries is essential to prevent Christians from being exposed to extermination and exile.

• Switzerland is already committed to the region. Swiss development assistance to Armenia and Azerbaijan amounts to over CHF 30 million between 2022 and 2025. In the spirit of a congruent foreign policy, Switzerland should not only contribute financially to stabilizing the region but also offer its mediation efforts.

 

Why is de-escalation important?

• There are well-founded fears that the war and ethnic cleansing could also be directed against Armenian territory, threatening a repeat of the Armenian Genocide. Such a scenario would trigger a mass exodus – including to Switzerland. Switzerland therefore has a fundamental interest in a stable Caucasus region.

• A lasting peace is only possible if the return of displaced persons is ensured and future escalations are prevented. The Swiss initiative strengthens international law, has a de-escalating effect, and signals that ethnic displacement will not go unchallenged.

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