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Brotherhood or Otherhood? Uzbekistan, Turkmenistan, and Their Shared Borderland

ABOUT THE CASE

In this case, Ekaterina Mikhailova reveals how the conflict dynamics of early independence years of Turkmenistan and Uzbekistan gradually gave way to, first, normalisation and then bilateral cooperation. The case highlights that conflict legacy albeit hidden and not explicitly addressed persists and complicates a more profound engagement of the borderland in bilateral relations. 

To better understand how conflict and cooperation unfold between authoritarian states, this study examines Uzbekistan, Turkmenistan, and their borderland, with a specific focus on the role of their leaders and border everyday life in shaping bilateral and cross-border dynamics from 1991 to 2025.

The study includes two visualizations: the first illustrates the deterioration of bilateral and cross-border relations during the leadership of Saparmyrat Nyýazow (Turkmenistan) and Islam Karimov (Uzbekistan) from 1991 to 2006, culminating in a military buildup along the border in 2002. The second visualization captures the transition from tacit rapprochement and normalization to "brotherhood" rhetoric between 2006 and 2025. This period corresponds to the leadership of Gurbanguly Berdimuhamedow (2007-2022) and Serdar Berdimuhamedow (2022-present) in Turkmenistan, as well as the final decade of Islam Karimov’s rule (2006-2016) and the rise of Shavkat Mirziyoyev (2016-present) in Uzbekistan.

By juxtaposing these visualizations, the study highlights how rhetoric and everyday practices have diverged and converged over time, placing the distinct trends of conflict and cooperation into dialogue - an aspect often overlooked in public discourse. Since Turkmenistan and Uzbekistan embarked on the brotherhood rhetoric, their relations are described as eternally fraternal, omitting the near-war tensions of their early years of independence.

Borderland realities in Central Asia, especially in the first decade of independence are often poorly documented and rarely discussed in academic publications. The scarce number and frequent unreliability of available news reports and the virtual impossibility of conducting fieldwork on both sides of the Turkmenistan-Uzbekistan border pose a significant challenge to studying the two states and cross-border interactions among their citizens on the ground.

The data shown in these two visualisations has been collected through media analysis combined where possible with fieldwork observations. The first visualisation draws predominantly on news reports of non-governmental critical news outlets and information agencies such as Radio Azatlyk, Radio Ozodlik, Fergana News, CABAR and Eurasianet and publications by several non-governmental organisations: Human Rights Centre “Memorial”, Institute for War & Peace Reporting, the exiled Turkmen Initiative for Human Rights and Turkmen News. The second visualisation draws equally on news reports by major regional newspapers, websites of Uzbek Embassy in Ashgabat and Turkmen Embassy in Tashkent as well as fieldwork.

Relying on reporting from and about the two highly isolated authoritarian states known for a crackdown on human rights and freedom of the press has significant limitations. Publications on sensitive topics like smuggling are often imprecise and possibly censored.

The two stories told here, one on the growing alienation and the other on the gradual rapprochement between Turkmenistan and Uzbekistan, have been conveyed in more detail in the :

  • Mikhailova, E., & Horák, S. (2026). Ripping Up the Ties: Tracing Rising Alienation in Bilateral and Cross-Border Relations of Turkmenistan and Uzbekistan, 1991–2006. Journal of Borderlands Studies, 1–27. https://doi.org/10.1080/08865655.2026.2727642 Available at: https://www.tandfonline.com/doi/full/10.1080/08865655.2026.2727642
  • Mikhailova, E. (2026). Weaving the Borderland Back into Bilateral Relations: the Case of Uzbekistan and Turkmenistan, in: Golunov S. (ed.) Beyond Dividing Lines
    Comparative Insights into Cross‑Border Cooperation Worldwide. Conference Proceedings. Almaty: SDU Central Asian Research Center (CARC).
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Regional Context

The Uzbekistan-Turkmenistan borderland is a vast area spanning the 1,800 km long Uzbek-Turkmen border running from a tri-point of Turkmenistan and Uzbekistan with Kazakhstan in the west to their tri-point with Afghanistan in the east. In the Central Asian context, this borderland stands out due to its high population density, including kin ethnic groups residing on both sides, its road connectivity and lack of impassable terrain, resulting in a high economic and socio-cultural potential the border regions. However, since the independence of Turkmenistan and Uzbekistan to this date this potential remains underutilised.

Period I: 1991-1996 Establishment of inter-state relations and levelling the Soviet structures

Spring 1991: a delegation from Soviet Uzbekistan visited Soviet Turkmenistan to establish direct ties between the republics without interference from Moscow

August 31, 1991: Uzbekistan declared independence

October 27, 1991: Turkmenistan declared independence

1993: Turkmenistan and Uzbekistan established diplomatic relations

1995: the Uzbek Embassy opened in Ashgabat

1996: the Turkmen Embassy opened in Tashkent

Period II: 1997-2002 Increasing isolationism and growing distrust towards Uzbeks living in the Turkmen border regions

1997: Turkmenistan unilaterally dropped all passenger, rail and bus connections to Uzbekistan

1998: Introduction of insurance fees for foreign vehicles crossing the border in Turkmenistan. Cars with Kazakh and Uzbek number plates virtually stopped coming

1999: Legal restrictions on entry to Turkmenistan with special arrangement for borderlanders: Turkmenistan introduced a visa regime with other former Soviet Union republics. Yet, a visa-free agreement between Turkmenistan and Uzbekistan allowed residents of border regions to enter the adjacent regions of Turkmenistan without a visa for up to five days. That arrangement was used widely as ethnic Uzbek population in Turkmenistan is concentrated in border regions of Lebap and Dashoguz while ethnic Turkmen population in Uzbekistan is particularly present in border regions of Karakalpakstan, Khorezm, Bukhara and Surkhandarya

1999: Forced Turkmenisation of the borderland population: crack down on non-Turkmen newspapers by changing the language of reporting from Russian and Uzbek to Turkmen only, some regional and local newspapers liquidated. Turkmen attire became obligatory for all in schools

2000: Beginning of the installation of the barbed wire and concrete blocks along the border

2001: Further restrictions on entry to Turkmenistan: introduction of a fee of $6 for Uzbek citizens visiting border areas of Turkmenistan. Dashoguz region received the status of a border zone: visiting it required obtaining a special permit issued by the police based on an invitation letter from relatives or acquaintances in Dashoguz certified by the regional administration (khyakimlik) – seven criminal cases opened in the Dashoguz region on charges of illegal border crossing

2002: Uzbek authorities introduced a $6 fee for Turkmen citizens entering Uzbekistan on a visa-free basis
 

Period III: 2002-2004 Political crisis

Late 2002: Crisis in bilateral and cross-border relations

  • 25 November 2002: Alleged assassination attempt on Saparmyrat Nyýazow
  • 16 December 2002: Special forces of Turkmenistan stormed the Embassy of the Republic of Uzbekistan in Ashgabat
  • 20 December 2002: The border crossings on both sides blocked by military units. Border towns and villages in Turkmenistan patrolled by military personnel. Uzbekistan unilaterally took control of the Karshi Canal, part of which is located on the territory of Turkmenistan, and supplies water to the Kashkadarya region of Uzbekistan. Turkmenistan transferred a motorised rifle division to the border area with Uzbekistan.
    Turkmenistan unilaterally closed its border with Uzbekistan. Additional border posts installed on both sides. The visa regime introduced between the countries, and the citizens of the two countries face great difficulties in obtaining visas

2003-2004: Many prominent borderlanders of Uzbek ethnicity in Turkmenistan were imprisoned, others were unfairly dismissed from their jobs

2004: Further restrictions of border regime. Visits to neighbouring countries cut to three days a month. That led to an increase in the number of illegal crossings and, in turn, resulted in occasional violence. Outbreak of plague in Turkmenistan potentially spreading to camels and livestock. Uzbekistan established sanitary and veterinary stations at the border crossings. To prevent the spread of the epidemic on the Uzbek side of the border, cattle breeders, geologists, and camels were vaccinated.

Period IV: 2004-2006 Gradual normalisation of bilateral relations alongside continuation of discriminatory policies towards borderlanders

September 2004: First telephone call between the two presidents after the conflict

November 2004: Meeting of the two presidents in Bukhara;
Evening of Uzbek-Turkmen Friendship in Tashkent

2005: The transfer of land from the Shumanay district of Karakalpakstan to Turkmenistan following the expiration of the Soviet-time land lease agreement. 1,500 Shumanay dwellers stayed in Turkmenistan, the rest (about 2,300 people) retained Uzbek citizenship but lost everything they have had and had to start from scratch in a new place. Several dozens of Uzbek families from Dashoguz province evicted to remote areas of Turkmenistan

Mid-April 2006: 40 ethnic Uzbeks residing in the border farming societies of Gulistan, Dovletli and Mailijengel in Turkmenistan were forcibly expelled from Dashoguz province to Uzbekistan.

21 December 2006: Death of the first president of Turkmenistan, Saparmyrat Nyýazow

Transition from Conflict to Cooperation

Following the death of Turkmenistan’s first president Saparmyrat Nyýazow in 2006, a trend for gradual and pragmatic reload of bilateral relations has continued. However, for another decade, a “thaw” at the Uzbekistan–Turkmenistan intergovernmental level unfolded primarily in the capital cities rather than in the borderland.

With Shavkat Mirziyoyev’s arrival to power in 2016, Turkmenistan and Uzbekistan became interested in rapprochement beyond presidential meetings and formal agreements, extending it to the broader public through public diplomacy and more engagement with the cross-border level.

Period I: 2006-2015 Transition from normalisation to good-neighbourly relations

2006: Arrival of Gurbanguly Berdimuhamedov to power in Turkmenistan

2007-2009: Official visits of the Presidents of Turkmenistan and Uzbekistan to each other

2010: The first Festival of Friendship between Turkmenistan and Uzbekistan held in Dashoguz

2012: Presidential meeting in Ashgabat

2014: Futsal match between national teams of Uzbekistan and Turkmenistan at the 2014 Asian Championship qualifiers

2015: Official visit of Gurbanguly Berdimuhamedov to Uzbekistan, presidential meeting in Tashkent

Period II: 2016-2022 Intensification of good-neighbourly relations framed as eternal friendship

2016: Arrival of Shavkat Mirziyoyev to power in Uzbekistan

2017: 

  • Agreements on economic, cultural and humanitarian cooperation concluded between Dashouz (TM) and Khorezm regions (UZ) and Lebab (TM) and Bukhara regions (UZ)
  • Twinning agreement concluded between Ashgabat and Tashkent
  • Symbolic diplomacy: a street was renamed after Magtymguly Pyragy, the most celebrated Turkmen poet, and a memorial to him was opened in Tashkent; a street was named after Islam Karimov, the first president of Uzbekistan, and a monument to him was opened in Turkmenabat (Lebap Region)
  • Dashoguz hosted Days of Uzbek Culture in Turkmenistan for the first time
  • A faculty for training primary school teachers in the Turkmen language opened at the Adjiniyaz Nukus State Pedagogical Institute (Karakalpakstan)

2018: 

  • Park “Ashgabat” opened in Tashkent
  • House of Uzbek-Turkmen Friendship opened in Gaibu village in Khorezm province. Presidents of both Uzbekistan and Turkmenistan participated in the opening.

2021:

  • Uzbek Ambassador in Turkmenistan hosted a reception on the occasion of Nowruz, the Persian New Year celebrated on the spring equinox
Period III: 2022-now Expansion of good-neighbourly relations with a focus on economic and cultural exchange

2022:

  • Arrival to power of Serdar Berdimuhamedov  in Turkmenistan
  • Festival of Friendship between Turkmenistan and Uzbekistan held in Dashoguz
    park “Tashkent” opened in Ashgabat
  • First Interregional Forum of Turkmenistan and Uzbekistan took place in Bukhara

2023:

  • Grand celebration of the 30th anniversary of establishment of the diplomatic relations between Turkmenistan and Uzbekistan in
  • Park “Tashkent” in Ashgabat
  • Tourist infocenter opened at the border checkpoint "Shavot-Toshovuz“
  • Turkmenistan Culture Days held in Bukhara. As part of the festivities, the National Museum of Turkmen Carpets and the Carpet Weaving Center “SD Turkmen Haly” opened in the city

2024:

  • Uzbekistan Culture and Film Days were held in the cities of Ashgabat and Turkmenabat
  • Production of the first joint Turkmen-Uzbek feature film about Magtymguly Pyragy
  • Second Interregional Forum of Turkmenistan and Uzbekistan took place in Turkmenabat

2025:

  • Turkmenistan Culture Days were held in the cities of Tashkent and Khiva
  • Third Interregional Forum of Turkmenistan and Uzbekistan took place in Bukhara
  • Opening of the Shavat–Dashoguz joint visa-free border trade zone
  • Agreement on resumption of direct flights between Ashgabat and Tashkent
Concluding Remarks

Between 2006 and 2025, bilateral relations between Uzbekistan and Turkmenistan have significantly improved and are often described as a strategic partnership. However, the involvement of the Uzbek-Turkmen borderland in these relations remains limited, localized, and irregular. One reason for this piecemeal engagement may be the reluctance to address the recent interstate conflict and the mistreatment of borderland populations by both states. Yet, confronting this difficult past is essential for building a solid foundation for lasting, peaceful, and good-neighborly relations, as well as aligning the rhetoric of Uzbekistan and Turkmenistan as fraternal nations with the realities on the ground.

ABOUT THE AUTHOR

Ekaterina Mikhailova is a Political Geographer based at UiT-The Arctic University of Norway, working at the crossroads of Border Studies, Eastern European Studies and Governance. She is a regional editor of the Journal of Borderlands Studies and Head of the project "Border(land) Museums as sites of remembering and forgetting: between lieux de mémoire et lieux de l’oubli" (2026-2028) funded by the French-Nordic trilateral program CUNP/FMSH. Before joining the UiT, Dr. Mikhailova held postdoctoral positions in many well-known centres of Border Research and Eastern European Studies, including the University of Eastern Finland (Finland), the University of Geneva (Switzerland), the Leibniz Institute for Eastern and South-Eastern European Studies (Germany) and Luxembourg Institute of Social-Economic Research (Luxembourg).