Paata Zakareishvili, conflict scientist
Georgia has two conflicts – Georgian-Abkhaz and Georgian Ossetian conflicts which have turned into a Georgian-Russian conflict consequently. As a result of the armed conflict in August of 2008, Russia occupied Georgian territories in the course of neglecting all international norms. Despite the requests of the leaders of many governments, Russia boldly continues its policy.
Russia does not follow six-point cease-fire agreement which was signed by Russian President Medvedev and Georgian President Saakashvili under supervision of the French President Sarkozy. It is evident that Russia does not hurry to change its position and moreover, it reinforces its positions in South Ossetia and Abkhazia. I fully understand the activities of Russia and we should not expect anything better from them because Russia is an aggressor and occupant state. However, I cannot understand the activities of the Georgian state. The government of Georgia is focused only on the Russian occupation. They want to convince everybody that Russia is an occupant state; their propaganda works only in this direction. In parallel to it, all other important issues are neglected that is completely unclear for me. With regard to the occupation and Georgian-Russian relations, Russia either keeps silence or continues its allegations that its activities in Abkhazia and South Ossetia are legitimate. Apparently, they do not intend to retreat in this direction.
Russia expelled international organizations from the peacekeeping processes which monitored the situation in Abkhazia and South Ossetia. As you know, UN actively participated in the Georgian-Abkhazian conflict resolution procedures and before 2008 they monitored in the conflict zone. The OSCE worked on the Georgian-Ossetian conflict. Since Russia is the principle member of both international organizations, they blocked the activities of both organizations in the Georgian conflict zones. We were lucky because France was the EU chairman state by that time. France has always been one of those few states which can influence Russia. Frankly speaking, I doubt Russia’s final purpose was occupation of Tbilisi but I do not exclude that they speculated with it. Finally, Europe and particularly France managed to oppress Russia and compelled Medvedev to sign six-point cease-fire agreement.
It is noteworthy that Saakashvili and Medvedev signed two different documents – there are Sarkozy-Medvedev’s and Sarkozy-Saakashvili’s agreements. The difference is in the last 6th point which was signed by Medvedev. One paragraph regulated security and status issues of Abkhazia and South Ossetia on the background of the international community. I still cannot understand why and how the word “status” was removed from the agreement based on the request of Georgian side and only “creation security conditions in Abkhazia and South Ossetia by International Community” was left in it. Everybody remembers that in the previous years, Georgian side actively requested international support in the estimation of the status of the conflict regions. Nevertheless, the most important aspect – estimation of the status of the conflict zones through involvement and monitoring of the international community– was removed from the agreement. As a result, Russia declared that Georgia does not consider the status of Abkhazia and South Ossetia at all, so they have to recognize the independence of those territories in order to guarantee their security. In short, Russia found artificial and groundless motive to recognize the independence of Abkhazia and South Ossetia. After recognition, it will be more difficult for Georgia to resolve the conflicts in near future.
Recognition and Independence
I think recognition of the South Ossetian and Abkhazian independence is the biggest mistake by Russia. Russia will have to pay much for it. I doubt, earlier or later, Russia will have to take back its decision. For example, it is impossible to view South Ossetia as an independent state. Russian government will not accept it either and it will create many problems for them before the international community. Of course, I do not mean current government of Russia – Medvedev and Putin. I mean future government and future Georgian-Russian relations.
After Russia and several states recognized the independence of Abkhazia and South Ossetia, Georgian side faced serious problems and has left less resource to resolve these conflicts. Georgian side had to do its best to avoid this problem. However, current situation created new perspectives which we should take advantage of by all means.
After Russia recognized Abkhazia and South Ossetia, they got involved into Russian reality even more. It is not advantageous for Russia to append those territories because it will cause serious international scandal and Russia is fully aware of this. At this point, Russia justifies itself by allegation that they protect the local inhabitants from Georgian people. So, appending these territories will be completely illogic decision. If Russia breaches international borders, it will create many precedents for many other states who have disagreement with Russia about border-issues. So, I think, new borderlines are not within the interests of Russia.
Both Abkhaz and Ossetian peoples understand that they lost independence after recognition. One Abkhaz person told me an interesting thing: in the past we were not recognized but we were independent; now we have been recognized but we lost independence.
Perspectives of Abkhaz and South Ossetian Independence
There is another important factor which creates problems for Abkhaz people and but it is advantageous for us –ethnic Abkhaz people create minority population in Abkhazia and they have no chance to become majority in the region. If we compare this conflict with other conflicts, like Kosovo, Cyprus or Karabakh, we will see that so-called separatists make majority population in those regions while the situation is different in Abkhazia. Majority population in Abkhazia is made by ethnic Georgian, Armenian and Russian people. However, the majority population does not care, does not struggle and dream about independent Abkhazia. These are people who do not fight against Abkhazian independence but do not fight for it either. Abkhaz people also know that they have no chance of independence without considering the factor of their two neighbors – Georgia and Russia.
In parallel to it, the rusification process is going on among ethnic Abkhaz people who are minority in the region; young generation does not know Abkhaz language at all. They think knowledge of Abkhaz language is not advantageous for them.
There is no ethno-cultural state behind Abkhazia, like it happens in Kosovo with Albania and Karabakh with Armenia in their back. Abkhazian nationalism starts and finishes in the region with the population of 65 000.
These challenges should encourage us think over the perspectives of Abkhazian independence. We should also realize that we do not do anything but speaking about unfair recognition of these regions and Russian occupation in them. I believe we should spend our energy in other direction too.
As for South Ossetia, 12 000 ethnic Ossetian people live in the territory of South Ossetia nowadays. I am afraid that South Ossetia might become a military base of Russia. In 2001, South Ossetia was ready to take serious steps for the conflict regulation. We can declare that from 2001 to 2004 no other conflicts throughout the world had such a positive dynamic of regulation like Georgian-Ossetian conflict had. Ossetian people were ready to join Georgian Federation. Unfortunately, in 2004, the activities of Okruashvili (former defense minister) and Saakashvili escalated conflict in South Ossetia. Today, there is very difficult situation there. There are no ethnic Ossetian people in Tskhivnali region and there is serious threat that the territory will become a military base of Russia.
Our Simultaneous Activities
Why the State Strategy about Occupied Territories cannot work and why will the “Modalities for the Conduct of Activities in the Occupied Territories of Georgia” hinder the democratization processes in Abkhazia and South Ossetia?
Today, Georgian side shall be extremely transparent. It will support us to start a new policy in regard with Abkhaz and Ossetian peoples. We should forget propaganda about occupation. We adopted Strategy about Occupied Territories. It is not a bad strategy but it is badly presented document. Of course, this strategy will not work. The word “occupied” creates a problem which is mentioned in the document several times. With similar terminology we try to compel Abkhaz and Ossetian peoples to feel occupied by Russia and to view us as their survivors. It is fact that those territories are occupied and nobody argues about it but it is not profitable for us to mention this term in the title of the document. We also have a law on the occupied territories which repeats the same term and I think it is very correct decision – the state grants the correct status to the regions on the legislative level and it is enough. I do not think we should insert this term everywhere.
Another problem with the State Strategy on the Occupied Territories is that it only emphasizes Russia’s liability. It never mentions Georgia’s responsibility. It is undiplomatic that there is a reference to Russia’s responsibility in the state strategy but Georgia’s responsibility is never mentioned. This is a message to Abkhazia and South Osettia that shows that we are not ready to take on our responsibility yet. I think the strategy should have talked about both Russia’s and Georgia’s liability. If they decided not to write about Georgia’s liability then the issue of Russia’s liability should have been taken out of the document.
The most serious problem is that the strategy never mentions Abkhazian and Osettian sides as the conflict sides. Russia is referred to as another side of the conflict. I think this is a big mistake not just of the state strategy, but Georgian politics as a whole. We must do our best to eliminate Russian influence on Georgian conflicts. When we do not see Abkhazians and Osettians as conflict sides and refuse to talk to them, this estranges them. That is why I think we have to acknowledge Abkhazia and Osettia as conflict sides. This will weaken Russian influence on the conflict.
Modalities for Engagement of Organizations Conducting Activities in the Occupied Territories of Georgia adopted in 2010 is another topic. It deprived international society a chance to help local civil society in the occupied territories. This was a way for Abkhazians and Osettians to be involved in the western democratic world. According to the new decision, all organizations working on the conflict issues need to get approval on the project content from the Minister of Reintegration Issues. The Minister examines the project and issues the permission of its implementation. This way the projects will go through the “Georgian filter.” The NGOs that were perceived to be mediators before will represent Georgian side from now on.
Ways of Conflict Resolution
We need to show Abkhazians and Osettians that Georgia is different from Russia. We need to develop democratic institutions so they see that we have independent judiciary, human rights are protected and etc… that will not happen in Russia for a long time.
One significant aspect forgotten by Georgian side is that Abkhazians and Osettians are defending themselves with their passports. We need to examine our superficial attitude towards Abkhazian passports. Many Abkhazians cross Enguri for medical treatment or educational reasons. But they have problems here since they do not have Georgian passports. I think it is essential to render service to Abkhazians who come here with Abkhazian passports. Thus we will include them in the internal processes of Georgia. Do you know that Abkhazians who leave Abkhazia and become Georgian citizens after going through certain procedures have a chance to receive medical treatment for free or a less cost. I welcome this politics… But when Abkhazians come and find out that they need to reject Abkhazian citizenship for medical treatment, they draw back. For many this is insulting. Many receive Georgian passport but throw it away when going back to Abkhazia stating that they had to receive Georgian citizenship to be given medical treatment since there was no other way. If we make this decision and let Abkhazians know that they can receive medical treatment with Abkhazian passport, more Abkhazians will come. The same situation is regarding the education – many Abkhazians desire to receive education in Georgian cities, but they have to obtain Georgian citizenship that obviously creates problems when they go back to Abkhazia.
As for the Abkhazian license plate numbers, till 2008 August war, the cars with Abkhazian license plate numbers could easily cross Abkhazia and operate in the whole Georgian territory. Since war it is possible only in Zugdidi and only in case a driver has a special permission. Georgia should clarify and give right of free movement for Abkhazian license plates in the whole country. This will assist their integration in Georgian society.
The main thing is more openness from our side. But we do everything otherwise. Georgian side made ridiculous decision and closed the borders so that it is prohibited to bring Georgian newspapers to Akhalgori territory now. If we want to resolve the conflict, for once and all we need to forget the attitude – “more you yield, more independent they become.” We need to “yield more thus integrate them more.”
Why is government acting this way and why they do not make steps towards conflict resolution? There is the only explanation to it – government needs to be in power and it does not wish to strengthen those who are not in its team. However, this is another topic.
Humanrights.ge audio-recorded the speech of the conflict scientist Paata Zakareishvili during the presentation of the joint report of Georgian non-governmental organizations (August Ruins) in Boel Foundation, Tbilisi, February 14
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