LETTER FROM THE CHAIRMAN OF THE KARABAKH ARMENIAN NATIONAL COUNCIL

LETTER FROM THE CHAIRMAN OF THE KARABAKH ARMENIAN NATIONAL COUNCIL TO THE COMMANDER OF THE ALLIED FORCES IN BAKU REGARDING THE ESTABLISHMENT OF SELF-GOVERNANCE IN THE ARMENIAN PART OF KARABAKH UNDER BRITISH MISSION CONTROL, AND CRITICISM OF THE BRITISH PROJECT FOR A TEMPORARY ADMINISTRATION BASED ON THE APPOINTMENT OF A GENERAL-GOVERNOR BY AZERBAIJAN AS A CONTRADICTION OF THE PRINCIPLE OF SELF-DETERMINATION February 24, 1919

The Karabakh Armenian National Council, elected at the Fourth Regional Congress, has the honor of presenting its reflections on the current situation in the Karabakh region through its delegates, Bishop Vahan of the Karabakh Diocese and Council Member Grant Bagaturov.

From the previous written reports of the Provisional National Council, Your Excellency is already aware that the Armenians of Karabakh, who defended their freedom and right to independent existence with arms in hand, have never consented and cannot consent to subordination to Azerbaijani authority, regardless of its form.

Responding to your appeal to the peoples of Karabakh, the Armenian population refrained from any military actions or troop movements.

Yet, despite our full alignment with your appeal, the Armenians of Karabakh have been forced to silently witness, in contradiction to your own directives, how following the arrival of the Allied Mission, the Azerbaijani government deployed its troops to key strategic points—Askeran, Khankendi, Zabukh, Shusha, and Karyagino.

Simultaneously, Turkish detachments, commanded by Turkish officers, continue to operate within Karabakh.

These developments are perceived by the Armenian population as preliminary steps in an aggressive Azerbaijani policy, provoking natural unrest and indignation among the people.

Firmly committed to peaceful resolution of interethnic issues, the Armenians of Karabakh—hoping that the Peace Conference will honor the unanimous and unwavering will of the Armenian population and unite this ancient Armenian region with the territory of the Republic of Armenia—consider the only reasonable temporary solution until the Peace Conference’s resolution to be the preservation of the status quo that existed prior to the arrival of Turkish forces.

The Armenian zone of Karabakh, where Armenians constitute between 75% and 90% of the total population, is clearly separated from the Muslim zone, as confirmed by the Transcaucasian Special Committee during deliberations on the zemstvo question.

In this Armenian part of Karabakh, we deem it necessary to establish self-governance under the supervision of the British Mission, based on proportional representation, fully guaranteeing the rights of the Muslim minority. The project’s details will be presented by our delegates.**

From the draft made known to us by your representative, Major Monk-Mason, and from Your Excellency’s letter to the Commander of Varanda, Sokrat-Bek Melik-Shahnazaryan, it is clear that a temporary General-Governorship over the districts of Zangezur, Shusha, Karyagino, and Jevanshir is being proposed—a mixed Armenian-Turkic administration with a British Command representative.

Such a mixed administration, merging the Armenian and Muslim zones of Karabakh under current local conditions, would be impractical and would inevitably provoke conflicts and friction at every step—harming rather than helping peaceful coexistence and interethnic harmony.

The Karabakh Armenian National Council, sincerely desiring peace and lawfulness, cannot assume responsibility for a local authority structure that contradicts the clearly expressed will of the people for autonomous territorial self-governance in the Armenian part of Karabakh, separate from Azerbaijan, and the maintenance of the above-mentioned status quo until a decision is reached by the Peace Conference.

Given the above, the Karabakh Armenian National Council respectfully appeals to Your Excellency to revise the proposed establishment of a mixed General-Governorship and to resolve the issue of governance in the Armenian zone of Karabakh based on the principles outlined herein. We also request swift action to withdraw the troops that have, in defiance of your orders, advanced and occupied Armenian areas.

Considering the extreme importance and potential consequences of the situation in Karabakh, the Karabakh Armenian National Council humbly asks that Your Excellency bring this petition to the attention of the highest British command.

In conclusion, on behalf of the Armenians of Karabakh, we reaffirm our unwavering loyalty and devotion to the great Allied powers, who have always shown goodwill toward the long-suffering Armenian people. We also respectfully ask you, General, to accept our sentiments of deep respect and faith that the afflicted Armenians of Karabakh will find in you—as ever—the authoritative defender of their just interests and aspirations regarding the establishment of temporary self-governance in Armenian Karabakh, pending the outcome of the Peace Conference.

Chairman of the Council Central State Archive of Armenia, Fund 223, File 1, Folder 75, pp. 78–79. Copy. Typescript. Published in: Nagorno-Karabakh in 1918–1923, Yerevan, 1992, Document No. 54 (emphasis ours – Y.B.). Appendix to Document No. 270 of March 17, 1919. See Document No. 249 of February 20, 1919: “Draft Regulations on Temporary Administration of Armenian Karabakh.”

📜 Report from the Armenian Information Bureau to the Ministry of Internal Affairs of Armenia

On the Refusal of the Armenian Administration of Karabakh to Accept Funding from the Azerbaijani Government Baku, February 24, 1919

On February 10, the newly appointed Azerbaijani General-Governor, Khosrov-bek Sultanov, arrived in Shusha and settled in the Tatar section of the city. The day after his arrival, he summoned, according to a prepared list, Mayor G. M. Shahnazaryan, Bishop Vahan, I. B. Ishkhanov, and G. B. Minasbekov for negotiations. However, the Congress convening in Shusha at the time forbade any meetings until its work had concluded.

Sultanov then summoned the administration of the Armenian section for the purpose of issuing salaries and proposed that teachers of city and public schools also appear to receive payment—but only after signing a declaration recognizing Azerbaijani authority. The Congress likewise prohibited these individuals and institutions from accepting any payments from the Azerbaijani government, announcing that it would itself secure funding for their support.

As a result, by order of Sultanov, the treasury located in the Armenian section of the city was shut down, and no disbursements are being made.

Sultanov, without awaiting the end of the Congress’s proceedings, departed for Jevanshir on February 21.

Armenian Information Bureau in Baku Central State Archive of Armenia, Fund 201, Inventory 1, File 41, p. 23. Copy. Typescript. Published in: Nagorno-Karabakh in 1918–1923, Yerevan, 1992, Document No. 55. Appendix to Document No. 270 of March 17, 1919.

📑 Report of the Provisional General-Governor Sultanov to the Chairman of the Council of Ministers of Azerbaijan

On the Failure to Subjugate the Armenians of Karabakh and the Attempt to Win the British Mission’s Support for Enforcing Azerbaijani Authority No. 165 – February 25, 1919

Administering four districts of Azerbaijan under the special General-Governorship, given the extremely complex interethnic relations, presented itself to me as a task demanding tact, tolerance, even greater patience and impartiality—while always upholding the dignity and authority of the government I represent. A misstep or a poorly chosen word could derail the effort or, at best, further complicate the already difficult political situation. I viewed my initial mission as a purely diplomatic one.

Upon arrival, I sought to gauge Armenian sentiment: I ordered the Shusha district chief to notify all heads of government and civic institutions about my arrival and the scheduled time for formal introduction. All appeared—except the Armenians. Only the city school inspector presented himself. The Armenian police officers also did not appear, stating via their representative that they were being terrorized by a group of Dashnaks.

That same day, I received a note from the British Mission, inquiring about my summons and asserting the Mission’s right to be informed of all my actions. This note arrived before I had issued instructions to Major Monk-Mason as per General Thomson’s directive.

In response, I explained that I had invited the representatives to assess the state of local institutions and their needs, to restore order and legality—and that the British representative was obliged to assist me in this process, as per instruction, when deemed necessary. I emphasized the need for consultations at the General-Governorship’s office to devise measures.

I simultaneously sent General Thomson’s directive to the Major. The next day, Major Monk-Mason was invited for consultation, but he did not attend, sending two representatives instead. We conferred on several issues and reached full agreement (protocol attached).** They left entirely satisfied and even proposed organizing a private meeting with Armenian representatives Mayor Shahnazaryan and Sokrat-Bek Melik-Shahnazaryan (commander of the Varanda detachment).

I must note: the only path to agreement with the Armenians lies through British persuasion, or rather, pressure. Winning British support and disproving the fairness of Armenian demands seemed to me the core goal of the meeting.

When asked what they wanted, the Armenians refused to recognize Ararat*** or Azerbaijan, declaring themselves subjects of Russia. Asked which Russia they referred to, they said they hoped for its revival. Their response puzzled the British. I stated that if they waited for a monarchical Russia in the Caucasus, our paths diverged completely—and even if a federative Russia became an option, Azerbaijan would still align with Britain. I added that Britain was unlikely to return the road to India into Russia’s hands or ignore the strategic opportunity fate had offered it in this vital region.

From that moment, I believe, the British began distrusting the Armenians and trusting me, convinced of my peaceful intentions in our relations.

In the next meeting, the British proposed the following compromise formula (paraphrased): Sultanov would be recognized as General-Governor in all districts, with an Armenian civil assistant and a council of three Armenians and three Muslims. The assistant would be appointed by the Azerbaijani government.

I found this formula acceptable, though I knew the Dashnaks would reject it—which they did decisively. This confirmed the British view that the Armenians were not seeking compromise or peace and opposed the modus vivendi proposed by the British.

Afterwards, the British major came to me, declaring his belief that the Armenians—Dashnaks—were disruptive and should be arrested and expelled from Karabakh, that Azerbaijani administration must be installed throughout, even by British military force. He said he would submit a report to General Thomson expressing this position.

Thus, I believe I successfully achieved the immediate goal of gaining British trust and sowing doubt toward the Armenians. Should Thomson accept the major’s recommendations, my objective is nearly accomplished: I will, step by step and without physical force, compel the Armenians to recognize Azerbaijani authority.

To achieve this, one thing is essential—sow distrust among the Armenian poor (who comprise up to 90% of the population) toward their leaders, by providing material aid only to those Armenians who accept Azerbaijani rule. Simultaneously, act through the British by arresting and expelling ringleaders pursuing personal power.

Without aggressive measures, the Karabakh question can be resolved.

Of course, this diplomatic work does not compare with the broader matter of Andranik’s removal—which is now being resolved. Between March 5 and 10, Andranik will leave Karabakh.

Also underway is the issue of relocating Armenian-Turkish refugees and returning Muslim refugees to their homes. Alongside this, local administrative issues are being addressed: soon after my arrival, I convened a regional council (protocol attached). All measures described are being executed urgently. A people’s militia is being organized, and securing the border with Erivan Province is deemed a top priority, scheduled for action between March 15–20.

Particular attention is devoted to improving local administration by dismissing corrupt officials, prosecuting bribe-takers, and recruiting honorable, unblemished personnel.

General-Governor Khosrov-bek Sultanov Party Archive of the Communist Party of Azerbaijan, Fund 4033, Inventory 5, File 429, pp. 2–4. Certified copy. Manuscript. Published in: Nagorno-Karabakh in 1918–1923, Yerevan, 1992, Document No. 56. Copy sent to the Ministry of Internal Affairs of Azerbaijan. Meeting protocols not attached. *** Refers to the Republic of Ararat.

📰 Armenian Information Bureau in Baku

To the Ministry of Foreign Affairs of Armenia On the Tactics of Karabakh’s Conquest by the Musavatist Government February 26, 1919

A person recently arrived from Karabakh (not Armenian), well-informed about Azerbaijan’s approach to the Karabakh issue, reports the following:

The government of Khan Khoyski, unwilling to await the outcome of the Peace Conference, has decided to secure Karabakh for itself at all costs. The creation of Sultanov’s General-Governorship was conceived purely with this aim in mind and should be viewed as an instrument for waging war against Armenian Karabakh. All of Sultanov’s civil functions are mere pretenses.

The Muslim population—largely dissatisfied with its own government—views this adventure by beys and khans in a clearly negative light. The General-Governor’s “meetings,” so prominently advertised by official sources, do not reflect reality. These meetings were orchestrated by Balal Bekov, the chief of staff of the General-Governorship, who traveled from Baku several days before Sultanov himself. Although the events were meant to be grand, including plans for a hunting expedition in Barda, none of this materialized. Only police officials attended Sultanov’s “meetings”—no civilians were present.

Armenian Information Bureau, Baku Central State Archive of Armenia, Fund 201, Inventory 1, File 41, p. 20. Copy. Typescript. Published in: Nagorno-Karabakh in 1918–1923, Yerevan, 1992, Document No. 58. Appendix to Document No. 270 of March 17, 1919.

📑 Armenian Information Bureau in Baku

To the Ministry of Foreign Affairs of Armenia With Attached Correspondence Between the British Mission in Shusha and the Karabakh Armenian National Council Regarding the Appointment of a Temporary General-Governor Confidential, February 27, 1919

Major Monk-Mason of the British Mission in Shusha presented the following proposal to the Karabakh Armenian National Council, which was to be published upon acceptance:

From the British Mission: Official Announcement

The British Command announces to all residents:

With the consent of the British Command, Dr. Khosrov-bek Sultanov is appointed as Temporary General-Governor of the districts of Zangezur, Shusha, Jevanshir, and Jebrail. His assistant for civil affairs shall be an Armenian. A council comprising three Armenians and three Muslims will be established under the General-Governorship, along with an officer representing the British Command.

All troop movements must be coordinated with the British Mission.

Funding for all personnel under the General-Governorship will be provided with the consent of the Allied powers.

The British Mission emphasizes once again that the final determination of these regions’ national affiliation shall be made by the Peace Conference.

The Mission hereby declares that all orders issued by the General-Governorship and its institutions must be obeyed without question. Any resistance will be met with decisive measures.

After reviewing and rejecting this project, the National Council responded:

To the British Mission in Shusha

The Karabakh Armenian National Council, in full assembly and together with commanders of Armenian military units across Karabakh, has reviewed the appointment of a General-Governor by the Azerbaijani government and resolved that Armenian Karabakh cannot reconcile with this decision.

Dependence on the Azerbaijani government, in any form, is unacceptable to the Armenian population of Karabakh due to repeated violations and violence suffered under Azerbaijani rule in all regions where Armenians were placed under its authority.

Armenian Karabakh has already demonstrated to the world that it does not recognize and will not recognize Azerbaijani authority in its territory, as affirmed by the recent Congress of All Armenians of Karabakh.

Given that the British Command considers Armenian Karabakh a neutral territory not subordinate to any state until the Peace Conference decision—particularly not to Azerbaijan—the National Council regards the appointment of a British General-Governor as the only acceptable form of governance and requests the Mission’s advocacy to the higher British Command.

Chairman of the Council Secretary

Upon receiving this response, the Mission sent a letter to the Armenian military commanders, offering the same proposal and requesting the following declaration if they disagreed:

1. We, the undersigned, have read and discussed the proposed announcement from the British Mission. We do not intend to recognize representatives of the Azerbaijani government in any form within Karabakh and Zangezur.
2. We refuse to join the Council that would be created to manage the region.
3. We acknowledge the Mission Chief’s statement that any hostile action against the Azerbaijani government will be considered an act of hostility against the British government.
4. We cannot guarantee the consequences that the publication of the above proclamation may provoke in our districts.

After discussing the proposal and the declaration, the commanders stated that they fully aligned with the response of the National Council.

Subsequently, Lieutenant Maslennikov of the British Mission (a former Russian officer) addressed the Armenian commanders with a new letter:

To the Commanders

The National Council has not responded to the proposal submitted by the Mission.

The Mission requires a reply from you that is devoid of political character.

It is also essential that the Mission record that you have been informed of the content of Clause 3 in the declaration. The declaration does not contain politics; it merely represents a protocol and the result of our negotiations.

The National Council’s statement is entirely political.

The Mission Chief requested either your agreement, a new proposal for cooperation with Muslims and the Azerbaijani government, or your signature of the above protocol, optionally amended at your discretion.

Any other response is unacceptable to the Mission as it contradicts what was requested and previously agreed upon.

Lieutenant Maslennikov, British Mission

The commanders replied as follows:

To His Excellency, Lieutenant of the British Mission

In response to your letter of February 21, we, the undersigned commanders, once again respectfully inform you that bound by the will of the people (by resolution of the Fourth Congress), which granted exclusive authority to the National Council to engage in decisions determining Karabakh’s fate—and called upon as soldiers solely to defend the homeland—we regret that we are not in a position to address the substance of your proposal.

Commander of Varanda Commander of Dizak Commander of Khachen Commander of Jraberd

Armenian Information Bureau, Baku Central State Archive of Armenia, Fund 201, Inventory 1, File 41, pp. 11–13. Copy. Typescript. Published in: Bulletin of the Archives of Armenia, 1989, No. 1, pp. 91–93. Appendix to Document No. 270 of March 17, 1919.

📣 Protest from the Ministry of Foreign Affairs of Armenia

To the Commander of British Armed Forces in the Transcaucasus Regarding the Appointment of Sultanov as General-Governor Erivan, February 28, 1919

General Asser, the British representative in Erivan, conveyed to me a French translation of a telegram from General Thomson, which Your Excellency received from Baku. The telegram states that Dr. Sultanov is traveling to Shusha to assume the position of General-Governor over the districts of Zangezur, Jebrail, Shusha, and Karabakh, and that he does so without any claim to future administrative authority within Azerbaijan.

The Armenian government cannot regard the transmission of General Thomson’s telegram—even indirectly—as a gesture of gratitude from the British Command, nor can it interpret it as conferring upon Azerbaijan the right to temporarily exercise administrative authority over the aforementioned territories that are, at present, to be governed by Dr. Sultanov.

Previously, the government of Armenia lodged an official protest with the government of Azerbaijan regarding the appointment of Sultanov to the post of General-Governor.

In this matter, the Armenian government awaits a resolution from the Peace Conference and firmly believes that until such a resolution is adopted, the existing status quo must remain intact—one that, without question, cannot be unilaterally altered by the Azerbaijani government.

Minister of Foreign Affairs of the Republic of Armenia Tigranyan Central State Archive of Armenia, Fund 200, Inventory 1, File 244, p. 3. Copy. Typescript. Translated from French. Published in: Nagorno-Karabakh in 1918–1923, Yerevan, 1992, Document No. 60 (emphasis ours – Y.B.) 259

Yuri Barsegov “Nagorno-Karabakh in International Law and Global Politics”

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