Conflict history: Georgia

Head of State: President Mikheil Saakashvili, January 2004-
Head of Government: Vladimer Gurgenidze, November 2007-

After brief period of independence 1918-1921, Georgia was incorporated into Soviet Union. Nationalist movement grew in importance late 1980s, consolidating after Soviet troops killed 21 independence demonstrators Tbilisi 9 April 1989. Independence declared 9 April 1991. Since then history marked by political instability and conflict over breakaway regions.

Internal political struggles

First-elected President Zviad Gamsakhurdia forcibly removed from office by armed opposition supporters December 1991, only seven months after election. Eduard Shevardnadze, long-time head of Georgian communist party and former Soviet foreign minister, appointed acting chairman of new “state council” 1992; elected to restored presidency 1995. Shevardnadze’s rule brought degree of stabilisation, but increasing internal political instability with poor economic growth, high crime and corruption culminated in bloodless November 2003 “Rose Revolution”. After flawed parliamentary elections 2 November, opposition mobilised mass protests and ousted Shevardnadze. Western-supported President Mikheil Saakashvili elected January 2004 with 96 per cent of vote. National Movement coalition won absolute majority in March 2005 parliamentary elections. Constitutional amendments in 2004 established prime minister post and cabinet but increased presidential powers. Prominent politician Zurab Zhvania first PM until death from gas poisoning February 2005; independent Zurab Nagaideli, PM until November 2007 resignation due to health problems, was replaced by independent Vladimer Gurgenidze.

Saakashvili’s National Movement again won majority in October 2006 parliamentary elections. Action Plan for closer EU ties under the European Neighbourhood Policy framework concluded 2006. Since Saakashvili took office, Georgia has significantly increased military budget and capabilities. Political crisis late 2007: prominent former Defence Minister Irakli Okruashvili publicly accused Saakashvili of authoritarian rule and corruption and was subsequently arrested on charges of money laundering and abuse of power, sparking mass anti-government protests in Tbilisi. Saakashvili declared state of emergency 7 November and closed independent TV station IMEDI; violent police crackdown on protesters left more than 500 injured. Saakashvili re-elected president in January 2008 snap elections but by significantly lower margin; opposition again organised mass rallies and hunger strikes to protest results and call for political reforms. National Movement secured constitutional majority in 21 May polls with some 60 per cent of vote.

Conflicts with breakaway regions

Saakashvili has vowed to restore Georgia’s territorial integrity and unfreeze conflicts with breakaway regions. Following popular uprising, Tbilisi managed to gain control over renegade Autonomous Republic of Ajara and ousted strongman Aslan Abashidze in May 2004. “Quick fix” policy did not work in two remaining regions.

South Ossetia, bordering Russian province North Ossetia, sought to gain status of autonomous republic in 1989 and full independence in 1990. President Gamsakhurdia responded by abolishing region’s autonomy in December 1990. Forces respectively loyal to Tbilisi and Tskhinvali (South Ossetia) engaged in brutal clashes 1991-1992, leaving 1,000 dead. Russian-brokered Sochi Agreement in June 1992 brought about ceasefire, leading to deployment of joint Russian, Georgian and Ossetian peacekeeping forces and establishment of quadripartite negotiation mechanism: Joint Control Commission with Georgian, South and North Ossetian and Russian participation. Current leader Eduard Kokoiti – elected in unrecognised presidential elections in 2001 and 2006 – aims for reunification with North Ossetia within the Russian Federation. New fighting broke out in South Ossetia in summer 2004, when Tbilisi attempted to resolve the conflict through anti-smuggling operations, leading to casualties on both sides. In 2007 Georgia proposed changes to peace negotiations to replace OSCE-led Joint Control Commission and established provisional administration in Georgian-controlled areas of the conflict zone. Russia and South Ossetia never accepted modifications and negotiations between sides remained suspended until early August 2008 when situation deteriorated significantly in conflict zone with Georgian attack on Tskhinvali, followed by Russian counter-offensive.

Abkhazia, north west Georgia, sought secession early 1990s. Like Ossetians, Abkhazians are ethnically distinct from Georgians, but in contrast they were clear minority within territory of Abkhazia. Abkhazian Supreme Soviet passed Declaration on the Sovereignty of Abkhazia 25 August 1990; annulled by Georgian Supreme Soviet days later. Tensions rose throughout 1992 leading to war, with forces loyal to Tbilisi occupying Abkhazian capital Sukhumi. Armed groups from northern Caucasus came to support Abkhazia, began to regain territory. Abkhazian conflict claimed up to 10,000 lives and departure of some 250,000 Georgians from region. UNSC in August 1993 issued resolution 858 calling for compliance with ceasefire agreed 27 July and establishing UN Observer Mission in Georgia (UNOMIG). Fighting continued until 14 May 1994 Moscow Ceasefire Agreement saw deployment of Russian troops (under guise of CIS). Negotiations between sides took place within “Geneva Peace Process”, chaired by UN, facilitated by Russia, and observed by OSCE and Group of Friends (US, Germany, UK, France and Russia). De facto Abkhaz parliament elected Vlaidslav Ardzinba president in 1994, succeeded by Sergei Bagapsh in 2005, who strongly supports independence. Tbilisi also launched a major anti-criminal police operation in the Kodori valley in 2006, sparking new tensions; UN-led talks remain stalled and de facto authorities rejected any offers of broad autonomy within Georgia. Escalation spring 2008 with several killed in blasts and clashes, increased Russian support, sparked renewed international effort for peaceful resolution, including three-phase German peace plan proposing confidence-building measures, refugee return and support for economic development.

Georgian-Russian Relations

Increasingly strained relations with Russia continuously influence domestic and foreign politics. Saakashvili, who vowed to bring Georgia closer to EU, has accused Moscow of supporting breakaway republics’ claims for independence and tried to reduce Russia’s influence on conflicts by demanding new negotiation mechanisms. Tbilisi has called for departure of Russian peacekeepers from Abkhazia, and Russia withdrew from a 1996 CIS treaty imposing sanctions on Abkhazia. Moscow claims Chechen insurgents are hiding in the Pankisi valley. The arrest of Russian officers in Georgia on spying charges September 2006 and visa requirements for Russian peacekeepers in Abkhazia provoked Russian bans on Georgian import goods and sanctions. Russia publicly warned against Georgia’s NATO bid early 2008. Tensions flared when Russia in April 2008 increased support for breakaway Abhazia: after announcing its recognition of legal documents issued by de facto authorities, Moscow moved additional peacekeepers into Abkhazia, citing Georgian plans of invasion. Amid controversy over violations of Georgian airspace and continued bellicose rhetoric, Tbilisi July withdrew Moscow ambassador. 8 August Georgia attacked South Ossetian capital Tskhinvali, followed by Russian counter-offensive.

updated August 2008

Source: International Crisis Group

More information: http://www.crisisgroup.org/home/index.cfm?action=conflict_search&l=1&t=1&c_country=42