Uzbekistan
Updated January 10, 2023
Uzbekistan
Overview
potential means of evading the two-term limit on the
Uzbekistan is a landlocked country in Central Asia that
presidency. When a new draft constitution was published
became independent with the dissolution of the Soviet
for public comment in June 2022, officials presented the
Union in 1991. Because it has the largest population in the
proposed changes as intended to further democratization
region and is the only country that borders all four other
and bolster human rights. Some of the proposed provisions
Central Asian states (Kazakhstan, the Kyrgyz Republic,
would have changed the political status of Karakalpakstan,
Tajikistan, and Turkmenistan), many analysts see
a sparsely populated region in western Uzbekistan, by
Uzbekistan as a potential regional leader. The country also
undermining its nominal autonomy. This aspect
shares a border with Afghanistan. U.S. policymakers have
unexpectedly spurred large-scale protests that turned
identified Uzbekistan as a key partner in addressing
violent, leaving at least 21 people killed and over 200
regional threats such as illegal narcotics, terrorism, and
injured. President Mirziyoyev subsequently announced that
violent extremism. Since Uzbekistan embarked on a wide-
constitutional articles concerning Karakalpakstan would
ranging reform program in 2016, the country has reengaged
remain unchanged. A constitutional referendum is planned
with the international community, leading to significantly
for spring 2023.
improved relations with the United States. The U.S.
government has praised Uzbekistan’s ongoing reform
Figure 1. Map of Uzbekistan
efforts, but continues to raise concerns about human rights
and political freedoms. Some Members of Congress express
interest in expanding U.S. engagement with Uzbekistan on
trade, democratic reforms, human rights, and security
cooperation.
Political Background
Leadership Transition. From 1991 to 2016, Uzbekistan
was led by President Islam Karimov, a former high-level
Soviet official. International observers considered his rule
authoritarian and highly repressive. After his death,
Karimov was succeeded by Shavkat Mirziyoyev, an
experienced politician who was prime minister under
Karimov for 13 years. Mirziyoyev embarked on an
ambitious reform program, aiming to transform Uzbekistan
by modernizing and liberalizing the economy, addressing
human rights concerns, and reengaging with the
international community. He won reelection to a second
five-year term in October 2021. Observers from the
Source: CRS
Organization for Security and Co-operation in Europe
Human Rights. International governments and
(OSCE) noted “significant procedural irregularities” and
nongovernmental organizations have lauded Uzbekistan’s
concluded that Uzbekistan’s reforms “have not yet resulted
in a genuinely pluralistic environment.”
progress on human rights since its leadership transition,
although concerns persist among some observers. The U.S.
State Department has recognized the Mirziyoyev
Government. Uzbekistan’s centralized government
government’s “significant efforts” to eliminate forced labor
structure grants the executive branch extensive powers,
in the harvesting of cotton, the country’s primary cash crop.
with the president exercising a significant degree of control
The International Labour Organization determined that
over the legislature and the judiciary. By law, the president
Uzbekistan’s 2021 cotton harvest was free from systemic
is limited to two terms, but this limit was not observed by
forced labor and systemic child labor. The Uzbek state
Karimov. The bicameral legislature (Oliy Majlis) has
strictly controls and monitors religious practices, and
historically provided neither an effective check on the
unregistered religious activity is criminalized. A new law
executive nor a venue for genuine political debate, although
on religion passed in 2021 eases some restrictions but has
its role has expanded somewhat under Mirziyoyev, who has
drawn criticism from religious freedom advocates for
urged greater initiative from Parliament. In 2020, legislative
maintaining significant government control over religious
amendments expanded parliamentary oversight powers.
life. According to the State Department, other major human
rights issues in Uzbekistan include arbitrary arrest and
Proposed Constitutional Reforms. Following his
detention, torture, restrictions on freedom of expression and
reelection, Mirziyoyev raised the possibility of
freedom of the press, and restrictions on civil society.
constitutional changes, a move some analysts see as a
https://crsreports.congress.gov
Uzbekistan
Terrorism and Violent Extremism. Terrorist attacks
growth in 2021. Uzbekistan has extensive economic ties to
within Uzbekistan are rare, but Uzbek nationals have been
Russia, rendering it vulnerable to fallout from the conflict
involved in international terrorist activity. Government
in Ukraine and related sanctions. The World Bank assesses
crackdowns drove domestic Islamist extremist groups out
that Uzbekistan’s GDP growth slowed to 5.7% in 2022 as a
of the country in the 1990s, and some Uzbek militants
result of the war, and projects 4.9% growth in 2023.
allied themselves with the Taliban, Al Qaeda, or the Islamic
State (IS) in Afghanistan and Pakistan. Although other
Foreign Policy and U.S. Relations
Uzbek nationals have been involved in terrorist attacks
Foreign policy. Under Karimov, Uzbekistan pursued a
abroad, they were predominantly radicalized outside of
largely isolationist foreign policy. Since 2016, Uzbekistan
Uzbekistan, often as labor migrants in Russia or Turkey. In
has reengaged with the international community and has
2017, a U.S. permanent resident from Uzbekistan who
moved to normalize previously tense relations with its
pledged allegiance to IS killed eight people in a vehicular
neighbors. In 2020, Uzbekistan became an observer in the
attack in New York. About 1,500 Uzbek nationals travelled
Russia-led Eurasian Economic Union, although many
to Syria and Iraq to fight with IS; including women and
analysts doubt that Uzbekistan will seek full membership in
children, the total estimated number of Uzbek citizens
light of the war in Ukraine. Uzbekistan is also pursuing
associated with IS is 3,000. Uzbekistan was among the first
accession to the World Trade Organization. Uzbekistan is a
countries to undertake a large-scale repatriation and
member of the China-led Shanghai Cooperation
rehabilitation effort for its IS-affiliated nationals, bringing
Organization and has received sizeable investment from
back over 500 women and children between 2019 and 2021.
China as part of Beijing’s Belt and Road Initiative. Since
Uzbek foreign fighters remain an international concern due
the Russian invasion of Ukraine began on February 24,
to their ongoing participation in armed groups active in
2022, the government of Uzbekistan has avoided endorsing
Syria and Afghanistan.
Russian aggression and has expressed support for Ukraine’s
territorial integrity.
Uzbekistan at a Glance
Afghanistan. Under President Mirziyoyev, Uzbekistan
Land Area: 425,400 square km., slightly larger than
sought to position itself as an intermediary between the
California
Taliban and the Afghan government, in line with
Population: Approximately 35 mil ion (2021)
Uzbekistan’s stated aim of facilitating intra-Afghan peace
Ethnic groups: Uzbek 83.8%, Tajik 4.8%, Kazakh 2.5%,
talks. Since the August 2021 Taliban takeover, Uzbekistan
Russian 2.3%, Karakalpak 2.2%, Tatar 1.5%, other 4.4% (2017
has pursued high-level engagement with the Taliban, while
est.)
maintaining that Uzbekistan will not extend recognition to
Religion: Muslim 88% (mostly Sunni), Russian Orthodox
the Taliban government before the international community
3.5%, other 3%
does. Most analysts consider Uzbekistan’s stance toward
Language: Uzbek (official) 74.3%, Russian 14.2%, Tajik 4.4%,
the Taliban to be pragmatic, with the priority of ensuring
other 7.1%
Uzbekistan’s security.
GDP/GNI per capita (2021): $69.2 bil ion/$1,960
Data from the World Bank, the CIA World Factbook, and the U.S.
U.S. Relations. U.S. relations with Uzbekistan have
State Department
improved significantly since 2016, reflecting the country’s
broader development of international ties. U.S. officials
continue to express strong support for Uzbekistan’s reform
Economy
efforts. President Mirziyoyev traveled to Washington, DC,
Key Sectors. Uzbekistan is a lower middle-income country
in May 2018 and lauded the “new era of the strategic
with significant natural resources and relatively well
partnership” between the two countries.
developed infrastructure. Major export industries include
cotton, natural gas, uranium, and gold. The country is the
U.S. Foreign Assistance. U.S. foreign assistance to
world’s seventh-largest producer of cotton, and is moving
Uzbekistan aims to support the country’s reform efforts
to transition from raw cotton exports to textile production.
while addressing the ongoing consequences in Uzbekistan
of sanctions imposed on Russia by reducing Uzbekistan’s
Uzbekistan has sizeable natural gas reserves; the primary
destination for natural gas exports is China, although the
reliance on Russian markets. Assistance to Uzbekistan also
majority of production is consumed domestically.
includes support for nonproliferation activities and public
Uzbekistan is also the world’s seventh-largest uranium
health programs, as well as for efforts to expand civil
supplier. According to Russian government figures, there
society, strengthen journalistic professionalism, increase
were more than 4.5 million Uzbek labor migrants in Russia
judicial independence and professionalism, and develop
in 2021; the actual number may be higher. Remittances
governance capacity. Aid is also intended to bolster
amounted to about 12% of GDP in 2020.
Uzbekistan’s border security and counterterrorism
capabilities. The State Department requested $48.9 million
Economic Challenges. The COVID-19 pandemic has had a
in assistance to Uzbekistan in FY2023, as compared to $44
negative impact on Uzbekistan’s economy, which faced
million requested for FY2022 and $43.99 million allocated
pressure due to lower exports, lower natural gas prices and
in FY2021.
export volumes, decreased remittances, and domestic
economic disruption. The World Bank estimates that
Maria A. Blackwood, Analyst in Asian Policy
Uzbekistan’s GDP expansion slowed to 1.9% in 2020
IF10302
(down from 5.7% growth in 2019), and rebounded to 7.4%
https://crsreports.congress.gov
Uzbekistan
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to
congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress.
Information in a CRS Report should not be relied upon for purposes other than public understanding of information that has
been provided by CRS to Members of Congress in connection with CRS’s institutional role. CRS Reports, as a work of the
United States Government, are not subject to copyright protection in the United States. Any CRS Report may be
reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include
copyrighted images or material from a third party, you may need to obtain the permission of the copyright holder if you
wish to copy or otherwise use copyrighted material.
https://crsreports.congress.gov | IF10302 · VERSION 8 · UPDATED