Year of 2017 has come to its logical conlusion. Below there is a list of the most important and popular articles that have been published. Please have a look and we are looking for reasonable and well arguemented feedbacks/comments:
…if he is removed from the political rivalry, this will mark the end of the Georgian political influence on the Ukrainian policymaking…Yes, Saakashvili contributed a lot to the post-Soviet space, but many stakeholders are tired with him and want his show to come to an end…
…Russia is a political, economic, and military guarantor of Abkhazia and South Ossetia’s independence and statehood. But these Georgian lands are not ‘without a people’. There are also a variety of other ethnic groups living in the disputed regions, and their…
Rustavi 2 Case: “Georgian Dream’s” Sword of Damocles (RIAC), November 23:
…Рустави 2 – это один из сильнейших и влиятельных частных телеканалов страны. На протяжении двух десятков лет он влиял на политические события. Именно благодаря этому каналу революционное…
…на фоне отсутствия дипломатических отношений российская сторона активно продвигает идею публичной дипломатии. За годы работы сформировались разные научные, экспертные и молодёжные платформы сотрудничества…
…представители подрастающего политического и академического классов всё больше и больше задаются вопросом о надобности нахождения Грузинского контингента на Ближнем Востоке, если…
Georgia has a long history of “breakthrough” celebrations following various political decisions announced by the government as a great victory. Lately, to the dissatisfaction of local society, it has become politically motivated exaggeration and/or an attempt to overshadow the incapability or…
The King is Law: Georgia’s Never Ending “Perestroika” (GeorgiaToday), September 11:
…the current government’s constitutional reform is highly criticized by various actors for being a unilateral decision not backed by society and lacking a common agreement among political actors. Some say it may even trigger the worsening of domestic processes, though, generally, this is a false statement. In fact, the reform is a continuation of Georgia’s never ending “perestroika” and will not significantly change the environment…
…Georgia’s political and other elites must stop using the ‘Russian framework’ to turn a blind eye to the challenges that such marches raise; they should work hard to start open debates to show their readiness for dialogue and awareness of the existing political, social and economic challenges…
…this event, just like the 2008 August War, the recent clashes during an anti-homophobia rally and various other events, reflects the existence of two parallel Georgias: Georgia as a political brand, created by the former president Mikhail Saakashvili, and Georgia as a political actor of international relations which has to maneuver in the global and regional political environment…
…the present research aims at examining issues related to the integration of Muslim communities, raising awareness of the wider public on these issues, and developing recommendations for respective stakeholders…
…restoration of Russian-Georgian diplomatic relations is not a grand question of ‘to be or not to be’ as it is represented by some, including in the Georgian media. It is an issue of necessity; whether Georgia needs it at all? From a practical point of view: barely is the answer….
…the West needs to criticize Russia to find explanations for its geopolitical recession and woes. At the same time, this tactic is quite safe, at least because the West’s strategic partners won’t be disappointed, with little or no threat posed to their own national interests…
Co-founder of the Center for Systemic Political Research (CSPR)
Editor of Georgian Journal of Systemic Politics (GJSP)
This year, Tbilisi celebrated the EU’s decision to pursue an “open-door” policy and give Georgian citizens the right to enter the Schengen zone without visa. The decision was highly praised by various political actors and proclaimed as a significant political victory for the post-Soviet state.
At the same time, some experts have doubts about the visa liberalization policy. Moreover, the notion of a “great victory” reminded many of a few similar stories that have been celebrated by local political elites as grand achievements that later turned out to be a part of political populism and simple exaggeration; an attempt to overshadow a domestic political, economic and/or social crisis.
From George W. Bush to the 2008 August War
There are three prominent cases that have been re-thought: George W. Bush’s visit to Georgia, the NATO Bucharest Summit and the 2008 August War.
For such a small country as Georgia, which at both the internal and external level significantly depend on support from strategic partners, it is a great honor to host high-ranking officials. The US President’s visit was the highest victory for Georgia, especially when taking into consideration the fact that this was the only time a US president had ever visited South Caucasia. George W. Bush gave a speech in the city center of Tbilisi on May 10, 2005 and proclaimed Georgia as a beacon of democracy in the region. Moreover, he argued that his administration had drawn a ‘red line’ over Caucasia, meaning that Russia should not try to intervene in the State’s affairs. Only, during the 2008 August War, Georgian society realized that the visit was more about PR rather than real politics. Georgia’s president Mikhail Saakashvili used it to legitimize his government’s aggressive “zero tolerance” policy that led to power abuse and frequent cases of human rights violations that Bush’s administration mainly ignored. Bush himself considered the Tbilisi trip a political step to boost his political popularity at home by showing the “success story” of his foreign policy, which was under fire over the Afghanistan and Iraq operations. Finally, neither Saakashvili nor Bush thought about the impact the visit would have on Georgian-Russian relations. While the leaders of both countries were trying to solve internal issues, the Kremlin perceived it as a direct threat to national security. Moscow’s approach became even more offensive which, in combination with Bush’s Tbilisi “assurances” and Saakashvili’s hot-headed nature, led to the 2008 August War.
The NATO 2008 Bucharest Summit is probably the most interesting case. At the end of 90s, the second president of Georgia, Eduard Shevardnadze, knocked on NATO doors. Saakashvili’s pro-Western government took all measures to finally integrate Tbilisi into the military organization; it even conducted a state referendum to officially prove the devotion of local society to the goal. In 2008, due to extreme support from the Eastern European countries (Poland, Estonia, Lithuania, Latvia) and the US administration, Georgia was never before as close to acquiring the so called MAP (The Membership Action Plan). But despite this unique political back-up, the attempt failed and instead of received MAP, representatives of NATO member states expressed merely a commitment to integrate Georgia and Ukraine once they meet the respective criteria. This commitment was proclaimed by Saakashvili’s government as another strategic victory while American and European officials praised Georgia’s democratic development. And, once again, only the August 2008 War made it clear that the decision was a huge blow to Bush administration’s foreign policy and a reflection of the Saakashvili government’s failure to gain support from leading Western European countries. Nowadays, it is frequently argued that the Bucharest decision was a political miscalculation of the West that gave a green light to Putin’s regime to stimulate the August 2008 War, rather than a victorious moment for Tbilisi.
Finally, we cannot avoid assessment of the August 2008 events themselves. This war is important not only from a political and geopolitical perspective, but also as a clear example of state propaganda. While Moscow tried hard to persuade the local electorate that this was a big victory for the Russian Federation, Tbilisi aggressively promoted the idea of exposing the Kremlin’s real face. In fact, both states lost. While Russia managed to restrain Georgia’s aspiration to become a NATO member, it created two practically internationally non-recognized self-proclaimed states totally dependent on Moscow’s political, financial and military donations. In turn, Saakashvili’s government, to undermine the catastrophic results of the conflict on the country’s political, economic and social dimensions, focused more on Russia’s international prestige. Tbilisi argued that it had managed to expose the evil nature of the Kremlin’s regime. As Russian scholar, Ivan Kurilla, perfectly noted, it is questionable whether Georgia exposed something but it is definitely unarguable that Saakashvili put his country in a position where neither the West nor liberal groups in Moscow were capable of blaming with total confidence the Russian government for the outbreak of the war. Hence, the game wasn’t worth playing.
All in all, each “breakthrough” analyzed above was presented by the Georgian government as a grand achievement to hide some concrete political misdeeds mainly connected to an inability or unwillingness to pursue a logical, politically calculated and balanced policy at home and on the international arena or were simply highly motivated political exaggeration.
What is wrong with Visa Liberalization?
There are lots of taboo topics in Georgia that will by default lead to an aggressive response from local conservatists (LGBT community rights) or liberals (NATO membership). The new issue that will probably cost the status of the pro-Russian movement is the visa liberalization. From March 28, Georgian citizens holding biometric passports are free to travel to the Schengen Zone without a visa for a period of 90 days within any 180-day period for purposes other than work. The EU’s political decision to open the door for Georgians was warmly received by pro-Western movements and democratic governments worldwide. Proponents of the Ukraine ‘Maidan’ used this precedent to motivate local society to continue on its existing political course while liberal elites opposing Putin’s regime in Moscow tried to attract more voters. The Georgian government, as usual, went all out to celebrate this “breakthrough”. European and Georgian officials and members of civil society are pretty confident that visa free movement will bring Tbilisi closer to Brussels. Only a minority of international and local experts express doubts and point to the questions this “open-door” policy raises.
One of those is whether the move will actually promote pro-Western attitudes and make more Georgians familiar with European culture? Receiving a Schengen Visa was a challenging task due to a lack of financial resources rather than the unwillingness of the local population to visit the EU. Moreover, it was never problematic to travel Europe in the scopes of various international forums, conferences, school exchanges or other activities that are well-organized and funded in Georgia. Lastly, in comparison to other areas like the USA or UK, the Schengen Zone was always perceived as the easiest to enter. So far, the move, in practice, should create new opportunities for those Georgian citizens who had issues with affordability and this is practically impossible to achieve due to the poor socio-economic situation. Georgian society experiences comparatively high levels of poverty and unemployment. Furthermore, local salaries are largely far below the European ones, added to which the country is witnessing probably the worst socio-economic crisis for the last decade. Unless improved, these factors will keep Georgian elites that never had problems with visiting EU “in” the European dream and representatives of financially less-prosperous groups “out”.
One more question that comes to mind is whether the visa free policy is about freedom of movement between Tbilisi and Brussels or is more about countering, as Georgian neoliberals actively argue, increasing pro-Russian and anti-Western sentiments in the country today. It became a tendency after the collapse of the “Rose Revolution” government, to maintain an alarmistic approach regarding internal processes in the State. Former members of Saakashvili’s regime, then representatives of other non-governmental groups, started promoting the idea of a possible deviation from the Western course with the “enhancing of ties” between Tbilisi and Moscow. Such attitudes finally found reflection in the articles and speeches of various European experts, scholars and officials calling on EU member state representatives to acknowledge Georgia’s achievements and instead offer something that would keep Georgian society devoted to the western course. As soon as NATO and EU membership was off the table, the EU leaders decided to grant Georgian citizens visa free movement.
Georgia has a long history of “breakthrough” celebrations following various political decisions announced by the government as a great victory. Lately, to the dissatisfaction of local society, it has become politically motivated exaggeration and/or an attempt to overshadow the incapability or unwillingness of the state apparatus to handle existing domestic challenges or government-non-friendly processes. EU’s visa free travel approach is definitely a positive step for Georgia, but we need to be aware of its political, social and economic aspects in order not to give the government another opportunity to hoodwink Georgian society.
The original article was published by GeorgiaToday. It is available here.
On July 13, members of various conservatist, nationalist and ultra-nationalist groups, alongside numerous regular citizens, marched in Tbilisi with pretty unpopular demands that irritated Georgia’s so called liberal elite. In response to the “Georgian March,” on July 23, a counter-strike was held by the Movement for Liberty – European Georgia that united representatives of various political powers and social movements protesting against what they believed to be an expression of fascist and xenophobic attitudes. The majority of international experts and actors condemned the Georgian March as a negative that could affect the country’s image and push away potential investors.
And while we may generally agree with the lion’s share of said allegations, there are very important issues that have yet to be openly discussed.
Beyond populist moves and statements, we can easily outline the three main demands the participants of the Georgian March made: 1) tighten migration laws; 2) deal with harmful practices in clubs/bars managed by migrants; and 3) restrict the activities of foreign-funded NGOs.
Migration is probably one of the most challenging issues that both developed and developing states face. Regardless of whether the targeted migrants represent a small group consisting the local population, or foreigners, what matters is that their number is obviously increasing. Foreign migrants mainly come from Asia or developing countries and work to occupy appreciable and “sensitive” areas – small and medium-sized businesses and the agricultural sector. In the wake of poor social and economic conditions, some citizens are feeling increasingly abandoned and “unprotected” by the government in the face of comparatively financially well-backed migrants. There is nothing more dangerous than this process, as it will undoubtedly lead to a xenophobic backlash, and it is unlikely that focusing on the significant number of Georgians illegally living abroad will somehow solve the problem.
The second Georgian March demand deals with increased facts of prostitution and other dubious activities in various places of entertainment. It is a paradox that while so-called liberal elites advocate rule of law, they rarely recognize that illegal prostitution exists in Georgia and is a common practice in many Turkish and Iranian clubs. Furthermore, there have been cases of child prostitution. This is not the first time the topic has been raised. A few years ago, there were calls to check a number of buildings in the settlement of Gonio, near the border with Turkey, where allegedly illegal prostitution was taking place. The government hushed up the affair. Another challenge is the harmful practice of price exploitation used at the same entertainment venues with the aim of gaining maximum profit from tourists visiting Tbilisi. Such cases often end in threats and fights that can cause significant harm to Georgia’s tourism sector reputation. And while we do not need to focus on the ethnic or national belonging of the owners of said venues, we should recognize the problem and take respective steps before it is too late.
Finally, the march organizers demanded the restriction of activities of foreign-funded NGOs. Georgia’s non-governmental sector has played a crucial role in building democratic institutions and practices. We need to keep this in mind. But, at the same time, we should realize that the third sector has transformed over the years. Nowadays, some current non-governmental movements are so actively involved in the country’s everyday life and, in particular, political processes, that it is sometimes too complicated to draw a clear line between political party, private sector and civil society. The best example is the ongoing constitutional reform where it seems that every single actor, including NGOs and INGOs, is lobbying specific political and business agendas. The issue is even more addled if we recognize the well-established so-called ‘revolving door’ principle in the country (the movement of individuals between positions in the private and the public sectors). So far, it is logical that more and more questions are being raised about the total and absolute dependence of these movements on foreign aid. This issue is nothing new in academic debates abroad, but in Georgia it is still a taboo.
So far, the issues raised by participants of the march are pretty relevant and we need to start debates and discussions even if we do not share the general pathos of the movement. Further, it is crucial to avoid stepping on the same rake twice by avoiding clichés.
What We Shouldn’t Do
There are two important things that we should stop doing if we aspire to building a unified democratic society. First of all, we need to finally abandon the so-called ‘Russian framework’. Secondly, we must stop fragmenting Georgian society into ‘desirable’ and ‘non-desirable’ elements.
The ‘Russian framework’
The Russian way has been a popular political method in Georgia for years. Mikhail Saakashvili and his United National Movement started using it to consolidate society around a ruling government, slandering different “unnecessary” groups and blaming hidden forces for various conspiracy theories. Russia may or may not be involved, but it is evident that blaming the so-called fifth column, Moscow’s intelligence services and other covert organizations, for every unpleasant meeting or riot is guaranteed by default. Unfortunately, the Georgian March was automatically analyzed in the given theoretical framework. By doing so, the government and opponents easily managed to turn a blind eye to the topics raised and, generally, flaws within the existing political order. We may boldly assume that the counter march led by the Movement for Liberty – European Georgia on July 23 with the slogan “No to Russian Fascism” is a continuation of this process. Additionally, it is the reflection of the total inability of Georgian actors to think beyond the ‘Russian framework’ and analyze events based on the current local political, social and economic conditions rather than external factors. Briefly, there is nothing that Georgia’s so called liberal elites can offer except the old “corny” story about Moscow’s menace. We should learn from Russia rather than further contributing to our fears.
‘Desirable’ and ‘non-desirable’ elements
There is widely-shared assumption among Georgian liberals that they are more tolerant than those who belong to conservatist or other movements. But, in fact, this is a more-or-less false statement. Georgian society in general is highly aggressive, non-tolerant toward approaches that to some extent significantly differ from the mainstream and has a tendency of continuous internal destructive confrontation. Furthermore, Georgian society fragments itself into ‘desirable’ and ‘non-desirable’ elements. Local liberal elites are no exception as they automatically create humiliating labels for those people or groups of people who do not share their main postulates regarding NATO and EU integration, Russian politics, immigration laws, land regulations, etc. This is a self-protection mechanism which stimulates a counter-response. As a result, terms such as ‘fascist,’ ‘Nazi,’ ‘traitor’ and other high-flying words are used on a regular basis by all involved parties.
Something similar happened with the Georgian March. Opposed to some arguments, the first unfriendly catchword was thrown by the members of so-called liberal elites and marchers were given a highly hostile reception before, during and after the event. Moreover, whether participants belonged to any particular group or were just citizens dissatisfied with the current state policy, was neither here nor there as they were all by default proclaimed enemies of the State. This was a huge mistake. We need to keep in mind that all that glitters is not gold- not everyone participating in the event belonged to ultra-radical groups with financial assistance from the Kremlin; and, consequently, do not represent ‘non-desirable’ state elements.
Georgia’s political and other elites must stop using the ‘Russian framework’ to turn a blind eye to the challenges that such marches raise; they should work hard to start open debates to show their readiness for dialogue and awareness of the existing political, social and economic challenges. Moreover, there should be no further attempts to split society into ‘desirable’ and ‘non-desirable’ groups and elements. The fact that some issues may be or are brought up by questionable groups in a questionable manner does not undermine their importance. Issues expressed by the Georgian March have some logic as well as empirics behind them and we need to talk about them. If not, the existing dissatisfaction will undoubtedly increase and such marches will be seen on a growing basis.
The original article was published by GeorgiaToday. It is available here.
Georgian security officers might have been complicit in the abduction of Afgan Muktarli, an exiled Azerbaijani journalist, which took place on May 29th in Tbilisi. Later on, Mukhtarli was found in a Baku detention facility. Local opposition and non-governmental organisations argue that the country is retreating from its democratic path and that the ruling Georgian Dream is supporting the regime in Baku.
This event, just like the 2008 August War, the recent clashes during an anti-homophobia rally and various other events, reflects the existence of two parallel Georgias: Georgia as a political brand, created by the former president Mikhail Saakashvili, and Georgia as a political actor of international relations which has to maneuver in the global and regional political environment. The brand is slowly being dismantled, as the country is increasingly failing to hide the real political processes underway within its borders. This in turn, has led to a painful disillusionment on the part of the local population.
Georgia’s political brand
Mikhail Saakashvili’s time in office was full of hope, reforms, achievements and, of course, misdeeds. Whether or not one positively assesses his two terms, it is clear that he was a well-educated politician and a brilliant PR campaigner. While in power he started building a new political brand of the country, which evolved over the years, reflecting the attitudes of the governing elite. The more Saakashvili’s political team was falling into authoritarianism, the weaker the brand was becoming. By the end of the Rose Revolution government’s time in office, when a new political grouping – the Georgian Dream coalition, defeated the president’s party in the parliamentary and presidential elections in 2012-2013, the brand began to lose its appeal.
There are several reasons for this loss. First, the brand was based on the perception that the country is a beacon of democracy in the South Caucasus surrounded by close friends and strategic allies (Turkey, Armenia and Azerbaijan) and oppressed by its northern neighbour, the Russian Federation. Moreover, it was meant to be protected by the red line that Russia supposedly could not cross, drawn by the former US president George W. Bush. Second, Saakashvili managed not only to build a well-structured political brand but also to persuade the majority of local actors that it reflects the reality. In practice, however, this was only an illusion used by the Georgian elite, both governmental and non-governmental, to keep society misinformed and to attract foreign political and financial resources.
What has been beneath the perception is a harsh political, social and economic reality where Georgia is a relatively democratic state in a very complex environment and a geopolitically sensitive region. All the neighbouring countries are falling into authoritarianism, often trying to further their own national interests with the help of Tbilisi. Finally, in their actions, the ruling elite has to take into consideration the existing regional tendencies and political climate. Georgia, as a political actor, does not possess any significant political, economic or military power and, so far, is highly dependent on its Western strategic allies, especially the US.
The harsh reality
Despite the well-organised and structured nature of Georgia’s political brand, the country is unable to hide the political processes taking place on the ground. The harsh reality often resurfaces and causes sincere astonishment and uproar. Probably the most painful disillusionment came when society realised that there have been no red lines in the South Caucasus and that Russia is capable of crossing any border. George W. Bush’s statement was just a part of his PR campaign in the wake of the growing dissatisfaction of American electorate with his presidency.
The 2008 August War reflected Tbilisi’s deep vulnerability to Russian military force. It also painfully showed that NATO’s was unable to provide support that Georgians had hoped for, that is military units on the ground fighting along Tbilisi against the aggressor. Furthermore, the recognition of Georgia’s separatist regions of South Ossetia and Abkhazia as independent states by Moscow once again proved that the country has been as vulnerable as ever. Georgia might be politically and morally supported by the West, but it is still defenceless in the face of military and other challenges that global and regional processes may unleash.
Finally, Georgia’s allegedly established democracy is a myth. After coming to power, the pro-Western post-revolutionary government assured its strategic partners that it would put the country on a democratic track. The Western allies (especially, the US under George W. Bush) immediately began to praise Tbilisi’s democratic transition. Both governmental and non-governmental organisations were working hard to create the image of Georgia as a beacon of democracy in the South Caucasus.
Yet, a peaceful meeting of the LGBT community in the capital on May 17th 2013 to celebrate the International Day Against Homophobia, Transphobia and Biphobia turned into a violent confrontation. Thousands of conservative ultra-Orthodox demonstrators broke through police cordons, clashing with gay rights activists. Georgia’s civil society reacted by gathering signatures under a petition calling the government to punish religious figures involved in the incident. But the newly elected Georgian Dream Coalition turned a blind eye, which showed that while the country may be democratic in comparison with its neighborhood, it is still far from the type of democracy it aspires to be.
Allies and enemies
The political dichotomy of Georgia’s allies and enemies built by Saakashvili is slowly vanishing too. In this scenario, Turkey, Armenia and Azerbaijan are presented as the country’s close allies and strategic partners, while Russia as the only threat to Tbilisi’s sovereignty, democracy and institutional stability. In reality, however, the dichotomy reflects rather the political correctness of Georgia’s elite and their attempts to avoid further escalation of the political situation in the region. The state is surrounded by authoritarian regimes that are trying to use Tbilisi to further their own national interests.
Istanbul, for instance, is pushing its neighbour to close all schools and organisations connected to the exiled Turkish politician, Fethullah Gülen. Following Turkey’s request, the Georgian government detained the manager of the private Turkish Demirel College. Moreover, at Turkey’s request, the authorities halted discussions in the Georgian parliament on making Didgoroba – the celebration of the 1121th anniversary of the victory of the Kingdom of Georgia over the Great Seljuk Empire, a public holiday. According to official sources, the Embassy of Turkey in Georgia asked that the parliament stops the proceedings over the legislative proposal because the day marks a great defeat for Turks.
The case of Afgan Mukhtarli’s, an exiled Azerbaijani journalist who was abducted by members of Georgian and Azerbaijani security forces and sent to a detention facility in Baku, is another great example of Tbilisi’s vulnerability. Human rights activists argue that the Georgian government collaborated with Azerbaijan due to the pressure from SOCAR gas and oil company. It is not a secret that Saakashvili’s early attempts to free the country from Russia’s Gazprom leverage led to a dramatic dependence on Azerbaijan’s energy resources.
Finally, Armenia with its Russian military base located in Gyumri, constitutes another veritable Damocles’ sword hanging over Tbilisi.
All in all, while Georgia needs a brand that would help to promote its national interests, the local elite should not get deluded. The country is on the path to democracy, but one that is still far from the Western definition. Moreover, the situation in the region is fragile and Tbilisi must realise that an existing dichotomy of allies and enemies is no longer relevant. The neighbouring countries will continue to put pressure on Georgia to defend their authoritarian ends. This becomes clear, when the brand faces a reality check.
Discussions over whether or not Georgia should restore diplomatic relations with Russia emerge time and time again. However, arguments on both sides of the divide are naïve, misleading, and ultimately pointless.
Plenty of topics have the potential to ignite Georgian society and provoke heated debates; but none like the Russian issue can divide it so clearly into ‘pro-Western’ and ‘pro-Russian’ sides, into ‘patriots’ and ‘traitors’. Last spring, a controversial deal with Gazprom once again raised questions over the current government’s policy toward its northern neighbour. Local political groups and activists clashed over the possibility of restoring Georgian-Russian diplomatic relations.
Georgia has not had official diplomatic relations with Russia since in August 2008, Russia initiated a military campaign to ‘coerce Georgia to peace’. They then recognised the separatist regions of Tskhinvali and Abkhazia as independent states. In response, Mikhail Saakashvili, president of Georgia from 2004 to 2013, unilaterally broke-off diplomatic relations with Moscow. After a decisive victory in parliamentary and presidential elections in 2012 and 2013, the newly elected coalition government of Georgian Dream promised to improve Georgian-Russian relations. The restoration of direct official inter-state communication is seen by Russia as a logical step toward reconciliation; meanwhile many in Georgia have serious doubts and fears about the consequences.
Russia wants to clean up its image
Some experts argue that Russia’s attempts to normalise relations with Georgia is a direct result of its military conflict in Ukraine. They argue that Moscow is trying to find common ground with Tbilisi to avoid alarming other post-Soviet nations with their foreign policy of undermining the sovereignty and territorial integrity of neighbouring states. While this theory is certainly plausible, Russia needs a friendly Georgia on its doorstep regardless; it has political and geopolitical value.
There is now no doubt that Saakashvili’s aspiration to rapidly integrate the country into NATO has failed. The Kremlin not only managed to indefinitely postpone Georgia’s NATO aspirations, but took full control over Georgia’s separatist regions, establishing new military bases and strengthening their grip. Despite these advantages, and Tbilisi’s deepened vulnerability, Putin’s regime is losing the war for hearts and minds. Russia realises that the current situation precludes any scenario where Georgian society re-unites with their Orthodox Christian brother-nation.
The (overblown) threat of Russian infiltration
In the absence of diplomatic relations, Russia’s activities on the ground are very restricted. We can assume that restoring official links would create more opportunities for Russia to work more closely with Russian sympathisers within Georgian who do not see themselves as part of the Western world, and do not share the view that being Georgian means being European. However, even if they had these opportunities, it is doubtful that Russia would be able to compete with Western influence and somehow re-direct Georgian society toward the North. The Kremlin simply does not have the financial resources, knowledge, or even the will.
Georgian society is divided on the issue. Former members of Saakashvili’s government are the strongest opponents of restoring formal ties. For them there is no purpose in any direct dialogue with Russia (even under the current Abashidze–Karasin format) unless they withdraw recognition of separatist regions as independent states. They argue that Georgia must maintain its tough stance against Moscow to prevent the country from falling under the influence of the Kremlin again. Moreover, they consider the current government’s policy to be collaboration with an occupant country contributing to its increasing influence in Georgian regions.
Russia will not reverse its policy
On the other side, we have a group of people who believe that direct dialogue between the two states is essential. For them, Tbilisi should restore diplomatic relations to start negotiations with Russia, and to persuade Putin’s government to return Tskhinvali and Abkhazia regions in exchange for some concessions — Georgia’s political and military neutrality.
Both cases rely on some misleading assumptions. Opponents of diplomatic relations are politically motivated, and their fears are more self-imposed than real. For years Saakashvili’s government used Russia as a political tool to deflect attention from domestic challenges and to rally Georgian society around his regime. This exaggerated narrative of a looming Russian threat have become an inherent part of the political outlook of so-called pro-liberal forces in the country.
It is also naïve to believe that Georgia can simply negotiate terms of sovereignty and territorial integrity with Russia. The Kremlin will not and cannot change its current policy. To reconsider the decision it took after the August 2008 War would damage Russia’s prestige as a consistent political player and throw into doubt the correctness of Putin’s foreign policy.
Why do anything at all?
Restoration of Russian-Georgian diplomatic relations is not a grand question of ‘to be or not to be’ as it is represented by some, including in the Georgian media. It is an issue of necessity; whether Georgia needs it at all? From a practical point of view: barely is the answer. It would be fallacious to assume that putting a Russian flag over building and calling it ‘the Embassy of the Russian Federation’ would contribute in any meaningful way to inter-state economic turnover, or increase trade deals and cultural exchange programs. And it will definitely not solve topics crucial for Georgia, such as its territorial integrity, sovereignty, and security challenges. But it may legitimise Russia’s approach and further strengthen the political image of the current government in the Kremlin on both domestic and international fronts.
It would be far more politically prudent to simply leave things as they are. If Russia is seriously intent on improving relations with its South Caucasus neighbour it must make the first real step in reconciliation; a step we have yet to see any sign of. Russia considers itself the ‘big brother’ in this relationship, hence, it needs to play accordingly.
Twenty years ago, when the Russian economy was in tatters during the turbulent presidency of Boris Yeltsin, few could imagine that within a period of just two decades, Russia would be in the media spotlight as one of the West’s key troublemakers. Today, many opponents criticize Russia for its perennial human right abuses, assertive foreign policy and authoritarian regime. It is natural, at least because they can score political points: Russia has become a global player that is worthwhile and politically expedient to lambast.
Without doubt, Russia’s domestic and foreign policy is very controversial, but this is not the only reason why the West has seemingly launched a crusade against the Kremlin. Some experts and politicians tend to point their fingers at Russia no matter what has happened: Russian President Vladimir Putin’s hidden machinations are everywhere, his influence is omnipresent.
It remains to be seen whether it is true or not, yet this should be addressed via thorough and competent investigation and the court, not through allegations. No matter what, but one thing is clear: behind this campaign against Russia is the West’s natural need to find a real adversary who might pose an existential threat.
It is no secret that following the collapse of the Soviet Union, the Western free and liberal world came up with the idea of “the end of history,” promoted by Stanford professor Francis Fukuyama. NATO members started believing that they were invincible, with their values and views becoming more viable with every passing day. Thus, the West rigorously encouraged other countries to accept its system of values and sometimes tried to impose its rules.
The military operation in Afghanistan was only the beginning; when that was completed, it turned into another campaign – in Iraq. The West’s attempt to expand its influence in the post-Soviet space was interpreted by the Kremlin and its like-minded supporters as attempts to orchestrate a “color revolution,” be it in Georgia (2003), Ukraine (2004) or Kyrgyzstan (2005). The Arab Spring in Tunisia, Egypt and Yemen in 2011 was another stage of the West’s endeavor to spread its values abroad. Finally, the apex of the Western crusade became the attempts to overthrow the political regimes in Syria and Libya, both of which turned into bloody and never-ending civil wars.
Ironically, the West didn’t achieve its results and plans in most cases, and all its noble attempts to “export” democracy abroad only backfired. Far from becoming more democratic and stable, the countries and the region was faced with a severe crisis. It became obvious that the Western scenario could not keep up with the harsh reality. Naturally, this discredited democratic values and democracy itself (as a tool of foreign policy).
When Barack Obama came into the Oval Office, the image of the United States had been already tainted and the new president had to shoulder this burden. Yet he was not able to deal with it — he didn’t fulfill his pre-election pledges to close the notorious prison in Guantanamo or withdraw American troops from Afghanistan and Iraq.
Moreover, regardless of his plan to shy away from an assertive foreign policy, he didn’t stop U.S. attempts to interfere into the domestic policy of other countries. This also hampered America’s reputation as well as the image of Obama’s Democratic Party in general. This created a fertile ground for the emergence of populist forces and the rise of flamboyant billionaire Donald Trump, who finally won the U.S. presidency. He promised to stop the democratic crusade abroad and focus more on domestic problems.
In this situation, oddly enough, Russia might play a very important role in returning the Western liberal forces back to power. Paradoxically, Russia has already started bringing the West’s politicians together — but not as a positive factor, but rather, as a threat. As indicated by the 2017 Munich Security Conference, the West does understand the need to unite and refute anti-democratic and populist forces.
The mainstream narrative, which is actively circulated in America, is crystal clear: Putin and, specifically, Russia’s hackers, contributed to Trump’s victory in the presidential election and Brexit; Russia’s intelligence rigged the 2012 parliamentary elections in Georgia to bring to power pro-Russian parties. This narrative is consistent even in the context of the upcoming elections in France and Germany: the media and pundits are mulling over a possible victory of pro-Russian candidates Francois Fillon or Marine Le Pen; they speculate about the possible failure of German Chancellor Angela Merkel, well-known for her tough and intransigent approach toward the Kremlin.
However, one relevant question comes to one’s mind: Did Russia really have such an impact on all these political processes? Why Russia, not China or some other country, let’s say? If Russia is so powerful and omnipresent that means that the U.S. is no longer a superpower — it has been replaced by Russia, as Thomas de Waal of the Carnegie Endowment for International Peace and Derek Averre of the University of Birmingham ironically implied during one of the 2016 meetings with Georgian pundits, who warned about Russia’s increasing influence.
To follow such logic, only a country that is economically, politically and militarily equal to the U.S. might have an impact on America’s domestic policy. But Russia is far from this level at the moment. The hacking attacks were commonplace, they have been undertaken and they will be carried out from both sides in future. And this is natural.
Regarding Brexit and the 2012 parliamentary elections in Georgia, these events indicated that the local political elites and their strategic partners were not able to recognize the indignation of voters as reality. In the case of Georgia, the authorities were reluctant to admit that its former President was authoritarian in his nature.
Likewise, if the liberal and politically correct forces in France and Germany fail, their defeat will be a result of the domestic political processes in these countries. For example, the refugee crisis might play a significant role: Merkel’s noble, if utopian, plan to shelter many refugees in Germany and immediately integrate them into society might backfire.
Naturally, in such an environment it is politically beneficial to lambast and point fingers at Russia. By the same token, the Kremlin is the best candidate to blame for all Western woes. The choice is rational for a good reason: It fell on Russia because the Kremlin annexed Crimea, intervened in Georgia and now is reported to be conducting subversive activity against the Western world.
Moreover, historical memory of why the West scapegoated Moscow is also important: Everybody remembers the Red Scare. Thus, it is quite easy to nurture mistrust toward Russia in such an environment by dredging up old memories. Furthermore, the West can criticize Russia without expecting serious implications for its long-term interests, because the list of its key strategic partners includes Saudi Arabia and other Gulf States, Israel and Turkey — but not Russia.
In other words, criticizing the Kremlin doesn’t necessarily undermine the West’s strategic interests. That might be the reason why Riyadh and Doha can keep bombing civilians in Yemen without expecting sanctions from the West. That might be why Israel continued to build settlements in Palestine despite the large-scale Muslim protests. That might be why Turkey’s President Recep Tayyip Erdogan feels impunity when he lawlessly imprisons thousands of Turkish citizens throughout the entire country.
Finally, Russia is powerful enough to be a bogeyman. It can pose a threat to the West, yet it is possible to deal with. That’s why the West chooses the Kremlin, not Qatar or Saudi Arabia (which allegedly finances terrorists and has been implicated in the 9/11 attacks against America), not Hungary with Victor Orban, not Ukraine with its political disorder, not even China with its global economic clout. However, Russia is big enough and, at first glance, very strong. With its weak economy and oil addiction, it is a good target to contain.
Summing up, the West needs to criticize Russia to find explanations for its geopolitical recession and woes. At the same time, this tactic is quite safe, at least because the West’s strategic partners won’t be disappointed, with little or no threat posed to their own national interests.
In October, Georgia didn’t support any of Ukraine’s resolutions denouncing the Kremlin’s foreign policy within the Parliamentary Assembly of the Council of Europe (PACE). That is surprising, given how many analysts had by now assumed that Georgia and Ukraine were on the same page when it came to Russia.
The two resolutions deal with “the political implications of Russia’s aggression in Ukraine” and human rights abuses “on the occupied Ukrainian territories.” By supporting them, PACE recognized the military conflict in Ukraine as “Russian aggression” for the first time and called on the Kremlin to withdraw its forces from the eastern part of Ukraine. Moreover, it denounced the parliamentary elections, recently conducted by Russia in Crimea.
When the Georgian delegation in PACE didn’t support these resolutions, the nation’s pro-Western parties reacted strongly. For example, the United National Movement lambasted the Georgian government and accused the country’s former Prime Minister, Bidzina Ivanishvili, of supporting Russia. Moreover, Mikheil Saakashvili, the former Georgian president and now the governor of the Odessa region in Ukraine, described such a stance as a “disgraceful” move.
However, an immediate response came from one of the members of the Georgian delegation in PACE, Eka Beselia. She retorted that Tbilisi needed to defend its own national interests. Even though this statement seems to have alleviated the increasing conflict, the video of Russian-Ukrainian journalist Matwey Ganapolsky, who accuses Georgia of betraying Ukraine in favor of Russia, fuelled the tensions. In contrast, Russian pundits see the unwillingness of Georgia to vote for the PACE resolution as a sign of improvement in Tbilisi-Moscow relations.
In reality, the reluctance of the Georgian Dream, the ruling party in Georgia, to approve these resolutions is just the logical conclusion of complicated relations with Kiev. Since the start of the color revolutions in the post-Soviet space, Georgia and Ukraine were largely in the same boat.
After the success of the Rose Revolution in Tbilisi and the Orange Revolution in Kiev, the newly elected governments were closely connected with each other and teamed up against Russia. This resulted from friendly relations between Ukraine’s former prime minister Yulia Timoshenko and former president Viktor Yushchenko on the one hand, and Georgia’s Saakashvili on the other hand.
However, their relationship was rather pragmatic in its nature, although officially Tbilisi recognized Ukraine as one of its closest allies. Since 2007 the democratic processes in the two countries have started moving in a reverse direction. Saakashvili’s penchant for conducting an aggressive policy as well as his authoritarian inclinations was increasing, while Ukraine faced the corruption and the political rivalry between Timoshenko and Yushchenko.
The more impact this had on the countries’ stability and development, the more obvious became the fact that the ruling elites from both sides did not support democratic reforms, but only the regimes that were friendly to them. Thus, Georgian-Ukrainian relations could be seen as a form of cooperation between governments, not between the people.
And this trend became relevant until the 2010 presidential elections, when Georgia’s civil society and population called on the government to support democratic processes and regime change in its “brother” country. From then on, Georgia has been shying away from supporting the political regime in Ukraine and focusing more on the support of the country’s own population.
However, Ukraine refused to consider such tactics, with its official representatives criticizing the Georgian Dream coalition for supporting Russia during the 2012 parliamentary elections. Moreover, Kiev cooperated with Georgia’s United National Movement, which was openly accused of building an authoritarian regime and egregious human rights abuses.
Logically, the new Georgian government under Ivanishvili cannot help paying attention to this fact. But it was relatively reticent and didn’t respond, even when Georgian volunteers came to fight in Eastern Ukraine to support Kiev and accused Tbilisi of supporting Russia. That had some implications for the Georgian Dream: It was seen as a political force that is capable of defending the country’s national interests.
Moreover, Georgian voters also saw the fact that Saakashvili was appointed as the governor of the Odessa region as an unfriendly move from Ukraine, as a slap in the face, because the former Georgian president was legally prosecuted in his home country, which meant that Ivanishvili couldn’t fulfill his pledges and restore justice [During the election campaign he promised to put Saakashvili in jail for corruption and the abuse of power — Editor’s note]. The problem was exacerbated when Kiev granted Saakashvili Ukrainian citizenship, which made it impossible to imprison the former Georgian president.
Saakashvili crossed the red line during the latest parliamentary elections in Georgia during the campaign. First, his colleagues from the United National Movement visited Ukraine. Second, he openly called for a coup d’état against the Georgian government, which he sees as pro-Russian. In fact, he threatened to conduct a new revolution in Georgia. This was the last straw for the Georgian Dream.
It is safe to say that the current Georgian political elites started seeing Ukraine as a real headache and the shelter for dubious and controversial Georgian politicians from the United National Movement accused of different wrongdoings and legal violations.
However, with the victory of the Georgian Dream in the 2016 parliamentary elections, a lot has changed. Moreover, the odds of the party of winning the constitutional majority are really high. It means that the influence of the party is growing in the Georgian parliament and even more could change.
As a result, the government won’t necessarily have to take into account the views of other political forces to take decisions. It can be pretty outspoken now that it won’t put up with anti-government moves and initiatives like the ones promoted by Saakashvili. Moreover, the Georgian voters, who are seeking to have those involved in the violations during Saakashvili’s tenure prosecuted. So, in this regard, the electorate supports the Georgian Dream.
Thus, all this indicates that Georgian-Ukrainian relations have always been more complex and nuanced than they seemed to be at first glance. During Saakashvili’s tenure, there was cooperation between his government and the ones of Timoshenko and Yushchenko. However, eventually, Tbilisi shifted its priority from supporting top political officials to supporting society and people.
Ukrainian politicians should keep in mind that the Russian factor is not the only one that determines the Ukrainian-Georgian agenda. Providing shelter to Saakashvili also does matter. So, to improve the relations with Tbilisi, Kiev should take into account its national interest and support the Georgian people instead of the country’s politicians.
The August 2008 war, events in Ukraine and role in Syria have raised concerns in the west that Russia seeks to reshape the post-Cold War international system and regain once lost positions around the world. “Deterring” Russia has become a crucial issue for NATO and its allies. But Georgia, where Russia is a crucial pillar of both domestic and foreign political narratives, has taken on this topic to a whole new level.
Russia may be actively involved in the Georgian economy, but our foreign policy narrative represents Russia as an existential threat. With Georgia’s status as a “beacon” of democracy in the South Caucasus taken as standard, the country finds itself under a continuous phantom threat from outside.
This is where Georgia’s domestic political narrative comes in. Ever since Mikheil Saakashvili divided society into “patriots” and “non-patriots” in the post-revolutionary years, the Georgian state has publicly searched for “enemy agents” in the form of “pro-Russian forces” and “fifth columns” — these groups are “traitors” who try to undermine Georgia’s sovereignty and aspirations to become a member of the civilised world.
Indeed, these exact terms have been used to abuse, oppress and libel various Georgian opposition groups and political parties by the political elite. Fast forward to 2016, this tactic has been transformed into an approved pre-election campaign to marginalise opponents and mobilise further support from Georgian society and the country’s strategic partners.
In fact, there is no clear definition of Georgia’s “pro-Russian” phenomenon. Instead, there are various interpretations that make it easy to deploy this term against “undesirable” elements and thus legitimise the use of questionable methods against them.
Saakashvili’s rise, fall and rise again
Russia’s involvement in its southern neighbour’s political life is an old story. During the 1990s, the Russian state contributed to the unrest in Abkhazia and South Ossetia (separatist regions recognised by Russia) and Georgians were fully aware of that.
Still, there was no public obsession with Russia in Georgia. Russia wasn’t the focus of discussion locally or internationally. Eduard Shevardnadze, Georgia’s president from 1992 to 2003, did not push the idea of Russia as an enemy, instead trying to maintain good relationships with both the west and the north.
Everything changed dramatically after the Rose Revolution in 2003. The newly elected political trio of Mikhail Saakashvili, Zurab Zhvania and Nino Burjanadze assured the international community that they will put the state on a democratic “path”. After the death of Zhvania in 2005, Saakashvili and his political team in the United National Movement (UNM) became the undisputed leaders of Georgia. Saakashvili tried to “restart” Georgian-Russian relations, but failed.
After the events of August 2004, when Saakasvhili’s government clashed with separatists in South Ossetia’s Tskhinvali region, it became clear that there was little ground for political dialogue between Georgia and Russia.
At the same time, the situation in Georgia itself also became more strained. Saakashvili’s aggressive rhetoric and authoritarian attitudes gave way to a political system with a “firm hand” and one dominant political party in parliament. Lacking balance, Saakashvili’s government made a few critical mistakes. By 2007, Saakasvhili’s popularity had seriously declined, which was reflected in a permanent protest that gathered thousands of people.
It was obvious that Saakashvili’s enormous support had melted away. In November of that year, Saakashvili ordered the dispersal of this peaceful protest, which led to mass riots, the closure of opposition TV broadcaster Imedi and the declaration of an emergency situation.
After Saakashvili was forced to resign and announce new presidential elections, it was clear Saakashvili was in need of a new political campaign that could consolidate Georgian society around him and legitimise his actions. He found it in Russia.
From November to November
The people who gathered in downtown Tbilisi in November 2007 came out against authoritarianism, abuse of rights and corruption. But prominent figures from UNM initially labelled it as a “pro-Russian rally” that aimed to dismantle Georgia, its sovereignty and overthrow the democratically elected pro-western government.
Saakashvili told local news agencies that “high-ranking officials in Russian special services are behind this”. Givi Targamadze, the former chairman of the parliamentary defense and security committee, warned protesters that the government would not let the Russian flag be raised on Rustaveli avenue, Tbilisi’s central thoroughfare. Moreover, Targamadze argued, the participants of these events would “drown in blood”. This was the first case in which a high-ranking Georgian official directly accused a foreign country of an attempt to overthrow the government.
Later on, under the direct patronage of the government, Georgia’s Public Broadcaster released a documentary called From November to November, in which Nika Gvaramia, Georgia’s then deputy state prosecutor, argued that Georgian opposition forces were in a direct contact with the Russian security agencies.
Step-by-step, and using “secret recordings”, Gvaramia explained that the leaders of Georgia’s main opposition forces, such as Levan Berdzenishvili of the Republican Party, Giorgi Khaindrava of the Equality Institute, Konstantine Gamsakhurdia, leader of the Freedom Party and Shalva Natelashvili, the leader of the Labor Party, directed the 2007 protests under the guidance of foreign agents. From November to November thus introduced the concept of “pro-Russian forces” and “fifth column” into Georgia’s domestic political culture, justifying the government’s actions as a “necessary evil”. Despite these allegations, no one was arrested or with treason or the organisation of an attempted coup.
Saakshvili’s government managed to make it acceptable for Georgian society to use questionable methods against so-called “pro-Russian forces” and the “fifth column”. As Koba Turmanidze, the director of Caucasus Research Resource Center, argued, an openly “pro-Russian” position could provoke a “harsh response”. This “response” was revealed several years later on 26 May 2011, when protesters led by Nino Burjanadze in Tbilisi were accosted by security officers and brutally beaten. Four people were later found dead.
The government called this protest “pro-Russian”, and easily justified its actions while members of Georgian society — afraid of the same fate — turned a blind eye to this “punitive” operation. By the end of Saakashvili’s rule, every single individual, group of people or political opponents who had alternative approaches had been labeled “pro-Russian” and “non-patriotic”.
Even though Georgia’s post-Rose Revolution government tried hard to stay in power, it lost parliamentary elections to the “pro-Russian” political party Georgian Dream in 2012.
Saakashvili’s attempts to represent Bidzina Ivanishvili, the oligarchic leader of Georgia’s opposition movement, as a close ally of Vladimir Putin failed. As soon as these “agents of foreign states” came to power, they assured Georgian society they would normalise Georgian-Russian relations.
But while there were hopes that the new government would dismantle the dubious concept of “pro-Russian forces”, Georgian society was deceived. Saakashvili’s legacy remained strong. Just like UNM in the past, Georgian Dream slowly haemorrhaged support thanks to its frequently illogical and ineffective reforms in various fields, including the extremely sensitive judicial and electoral systems. And on top of that, the failure of the Georgian-Russian “reset” intensified dissatisfaction among the electorate, on the one hand, and positions of anti-Russian groups, on the other.
By September 2015, one year before parliamentary elections in October 2016, and in the wake of Georgian Dream’s falling approval ratings, Russia became relevant again. In a BBC interview, Tina Khidasheli, Georgia’s defence minister at the time, urged western states to support Georgia on its way toward NATO and EU integration — otherwise pro-Russian forces would be represented in the new parliament. Funnily enough, it was a colleague of Khidasheli’s who appeared in the secret recording with a Russian intelligence operative in From November to November that “proved” Russia’s involvement in the November 2007 events.
It is a paradox that Tina Khidasheli, an active participant of the “Russian-led” events in November 2007, began a search for “Russian spies” among opposition members in the lead-up to this year’s parliamentary elections. Nowadays, both the government and opposition use the concept to corral votes and marginalise one another other.
For instance, take July’s OSCE parliamentary assembly annual meeting in Tbilisi. During the session, OSCE members should have voted for a new president. The UNM presented its own candidate Gigi Tseretely, while the ruling party opposed. By the end of the day, the dispute was not about Tseretely’s candidacy, but rather about which side was cooperating with the Russian delegation. It should be noted that while the Bush administration was previously keen to trust Saakashvili on “pro-Russian forces”, nowadays, it is a less popular topic abroad.
Russia is both an important trade partner and a threat to Georgian security, but Mikheil Saakashvili managed to transform the country into a popular political method to marginalise his political opponents and oppress them.
Now, two months before Georgia’s parliamentary elections, the Georgian Dream ruling coalition, which is unable and unwilling to crack down on opponents, is also using the concept to consolidate the electorate.
So, who do I call if I want to speak to “pro-Russian forces” in Georgia? It seems the addresses are growing exponentially.
On December 31st, 2015 President Putin signed Russia’s new national security strategy updating the 2009 strategic planning document, which covered the period until 2020 with the right of update in 2015. The updated strategy reflects not only changes in issues of global security but also the Kremlin’s aspiration to change the status of the country. The key objectives of Medvedev’s strategy (socio-political development and democratisation) were pushed into the background giving the priority to the topic of national interests.
The new concept focuses on tasks of foreign policy. As before, Russia is ready to work closely with Washington in a range of spheres. At the same time, the document emphasises the negative influence of the USA and NATO on issues of regional and global security. For example, the intentional fomenting of the conflict in Ukraine and the so-called Arab Spring. It should also be noted that the document does not mention Russia’s possible cooperation with the antiterrorist coalition operating in Syria.
The issues of further development and strengthening of regional relations are highlighted separately. This part of the document mentions two unrecognised regions of Georgia – Abkhazia and the so-called South Ossetia – as strategically important for Russia. As distinct from the previous edition, developing contacts with Asia and CSTO countries is not a priority.
To sum up, it is obvious that the Russian government tried to reflect the actual situation in its strategy. First of all, Russia reclaimed its status of one of the countries shaping global policy – without its participation peace is hardly possible. Russia and the West (in particular, the USA and NATO) are in the state of open confrontation. Any attempt to expand NATO will be considered as an act of aggression against Russia.
What does Russia’s updated strategy mean for Georgia? In fact, nothing! This document is a reflection of reality on the official level. The international community and Georgia have lived in this reality for a long time now and its confirmation in Russia’s national security strategy does not change anything.
The original commentary was published by CaucasianHouse. It is available here.
Member of the Italian Chamber of Deputies, Matteo Mecacci, and Chairman of the General Committee on Democracy, Human Rights and Humanitarian Questions of the OSCE Parliamentary Assembly, paid a three-day visited to Tbilisi in May. His visit sparked hopes regarding the reopening of the OSCE mission in Georgia four-years after its closing.
According to official information posted on the Italian Embassy’s website on May 16, Matteo Mecacci held various meetings in which he noted that “in the resolution approved in Belgrade last year, the Parliamentary Assembly of the OSCE has called for the reopening of an OSCE field mission in Georgia, and I believe that all OSCE Member States should support this goal with the aim of protecting the rights of the people who are still suffering after the 2008 conflict.”
Moreover, according to the Maestro TV report, while he visited Georgian and Russian checkpoints in Egneti, on the administrative border with South Ossetia, Matteo Mecacci announced the possibility of launching a new OSCE mission in Georgia by July 2012: “I am here due to the government’s invitation. I have met many people. I understand their condition and the OSCE will do everything to protect human rights. Recently, the Parliamentary Assembly discussed the issue of launching an OSCE office here, which will begin supposedly in July.”
The announcement made by the OSCE representative came as a surprise not only for the Ossetian side, but for Georgians as well. While the Georgian media was circulating information about the re-launching of the OSCE mission, the South Ossetian Foreign Ministry issued a special statement denying any talks or negotiations with South Ossetian authorities on the issue.
“Such nonsense is reported by the Georgian media. Currently, more than a year later, no negotiations about this issue are taking place. There were negotiations in 2009, 2010, and 2011 raised by the OSCE chairman. However, we did not accept their proposal, and neither did they accept our conditions,” said the head of the South Ossetian Presidential Administration, Boris Chochiev.
On May 16, The Messenger published an article reporting that Matteo Mecacci was confused about the Georgian media citing him about the information pertaining to the launch of the OSCE mission in conflict zone in July of 2012.
“With reference to the article published yesterday in our newspaper, S. Ossetia denies the return of the OSCE mission. Matteo Mecacci has kindly requested that we publish the following article, underlining that in his interview with Maestro TV, he never stated that the OSCE field Mission to Georgia will be re-established in July of 2012.” The article did not specify whether the Maestro TV report was simply a misunderstanding or purposeful misinformation.
The first OSCE mission in Georgia was established in late 1992 to facilitate the peaceful settlement of the conflict in Georgia’s South Ossetia region. In Tskhinvali, the region’s administrative center, the OSCE had eight unarmed military monitors. Military monitors were in charge of the monitoring of, and reporting of the ceasefire in the South Ossetian conflict zone. After hostilities resumed in the region in August 2008, they were pulled out of Tskhinvali.
With the obvious intention getting rid of the international monitors, Russia blocked the extension of the mission’s mandate, which expired in December 2008. As a result, the OSCE mission to Georgia after seventeen-years of being in the conflict zone was shut down on June 30, 2009.
Ever since this time, Georgia has tried to restore the mission. Despite the fact that European counties such as Finland and Greece were promoting the idea, Russia has been successful in its attempts at blocking the initiative. Moscow wanted the new mandate to reflect the post-August War’s “new realities” in the region- in particular, Russia’s recognition of the breakaway region’s independence.
The main question, however, is not the possible restoration of the OSCE mission, but the way in which the OSCE representatives would be settled in conflict zone. Therefore, the mandate, its obligations and effectiveness are more essential topics.
The OSCE mission in South Ossetia failed not because it ended up being closed; the mission failed because it has proven to be ineffective in promoting peaceful relations between Georgians and S. Ossetians, and has been ineffective in preventing the large-scale conflict that occurred in August 2008.The main reason for this was its lack of effective tools.
No doubt, the possibility of re-establishing the OSCE mission in the region is crucial for Georgia. Substantially, the OSCE mission differs from the EU Monitoring Mission (EUMM) by functioning directly inside the conflict zone. Therefore, the presence of an international mission inside the conflict zone will surely push the conflict towards the internationalization process. This in turn ensures that Georgia won’t stand alone against Russia. This also ensures that human rights problems would be taken into account and the process of demilitarization will become more rapid. This is the goal for which Georgian government has been fighting for years. But still, without effective instruments of mediation and influence, the OSCE mission loses its huge importance.
In the paper entitled The Failure of the OSCE Mission to Georgia – What Remains?- Center for OSCE Research analyst, Silvia Stцber, called the August War of 2008 “the major turning point” in the mission’s fate.
“The locus of this military conflict was the Georgian-South Ossetian conflict area. In nearly two decades however, it proved impossible to achieve a viable agreement that was acceptable to all sides – an agreement that would resolve the differences not only between the South Ossetians and the Georgians, but also between Georgia and Russia,” Stцber notes in the research.
By and large, the presence of the OSCE monitoring groups in the breakaway South Ossetia would be an immensely positive step forward in terms of internationalizing the conflict and preventing further escalation. However, without providing the mission with effective mechanisms, any mission would be doomed to fail.