PEOPLE’S PEACEMAKING PERSPECTIVES MAY 2011

IT IS OVER TWENTY YEARS SINCE TRANSNISTRIA, a sliver of land on the east bank KEY OUTCOMES of the River Nistru, broke away from the rest of amidst the disintegration of the ■ Sustaining high-level EU engagement . Violent confl ict ended with the ceasefi re of 1992. There have been occasional and commitment to Moldova’s alignment clashes since, but no fatalities. Yet, the unresolved confl ict has separated a generation of with the EU and resolution of the and Transnistrians. Transnistrian issue will drive forward progress.

Transnistria has deep economic problems and little prospect of being recognised, even ■ Addressing economic aspects of the by . Moldova has little hope of (EU) membership while the status confl ict will help improve local people’s of Transnistria remains unresolved. The current impasse benefi ts the business interests lives and build confi dence between Chisinau of those who are close to ruling elites and suits some external players, but it harms the and . prospects for ordinary people on both sides of the divide. ■ Ensuring long-term support for social contact across the divide will prevent Many of those consulted in the region recognise that the Moldovan-Transnistrian dispute the growing separation of the younger is ultimately a strategic issue that will require agreement with outside parties in order to generation becoming an obstacle to resolve it. They are looking for EU leadership to help fi nd a solution. resolution. ■ Findings and recommendations in this Policy Brief and accompanying report were Providing unbiased research and information on the consequences of generated from consultations which, for the fi rst time, brought together separate stalemate and potential resolution will representative groups on either side of the divide. Refl ecting the views of youth, women dispel fears and misperceptions on both and business people, the report provides valuable non-elite perspectives on the situation sides of the divide. and a range of concrete actions to improve the lives of ordinary people and build ■ Including Transnistria in Moldova’s EU confi dence and support for a resolution. These perspectives were reinforced by interviews alignment process will help ensure that with politicians and experts in Chisinau, Tiraspol and . this alleviates, rather than exacerbates the confl ict.

The People’s Peacemaking Perspectives project The People’s Peacemaking Perspectives project is a joint initiative implemented by Conciliation “It is important that you asked Resources and Saferworld and fi nanced under the European Commission’s Instrument for us our opinion, projects should Stability. The project provides European Union institutions with analysis and recommendations based on the opinions and experiences of local people in a range of countries and regions begin with the people.” affected by fragility and violent confl ict. Director of NGO, Tiraspol People’s Peacemaking Perspectives: transnistria

Findings and Recommendations 1. 2. Sustaining high-level Addressing economic EU engagement and aspects of the conflict commitment to Moldova’s will help improve people’s alignment with the EU lives and build confidence and resolution of the between Chisinau and Transnistrian issue will Tiraspol. drive forward progress.

Groups consulted on both sides of the “The ‘5+2’ was created to keep the Moldova is the poorest country in river felt that external actors, in particular conflict going.” so it is not surprising that there are Russia, were key to unlocking the Director of policy think-tank, Chisinau particular concerns over the economic Transnistrian problem. Students in Chisinau components and costs of a settlement. thought the EU should press Russia more Finally, concerns were expressed in Yet some of the economic obstacles to a on resolution. These views echoed results Chisinau that events in the Middle resolution cited by local people could be of a survey in 2009 by New Age/CBS-AXA East and North Africa might divert EU addressed in advance of a final settlement, which revealed a majority on each side resources and political attention away potentially making such a resolution more of the river (65% West Bank, 60% in from its eastern borders to its southern achievable. Transnistria) thought that the EU and neighbourhood. Regardless of funding “The first thing we have to think Russia were the players who could solve decisions, it is important that momentum about is our families … how they can the problem. on Moldova’s EU alignment and resolution of the conflict is not lost. live well; we gain nothing by talking “Politics in small countries is about a solution on Transnistria.” decided by big countries.” Recommendations Participant in youth group discussion, Participant, women’s research group, Chisinau n Signal continued commitment to Soldanesti, northern Moldova Moldova’s EU ambitions by renewing Yet people on both banks expressed For Transnistrians in particular, the political and financial commitments to the cynicism towards progress through high- prospect of reintegration with Moldova Eastern Partnership countries, including raises certain fears: would private business level negotiations to date. These have Moldova, and through high-level visits taken place through the ‘5+2’ format, and statements following the adoption of ownerships be recognised (particularly of comprising Moldova, Transnistria, Russia, the new European Neighbourhood Policy former Moldovan state enterprises); would and the OSCE, plus US and EU. (ENP). the large numbers of ‘state’ employees lose Russia has sponsored a parallel track of their jobs? n Ensure that the emerging ‘more for more’ ad hoc bilateral Moldova-Transnistrian approach, whereby EU funding keeps step Businesses and residents on both banks of meetings. Responding to periodic calls to with progress on alignment, is applied in the river highlighted the daily difficulties change the ‘5+2’ format would, however, the Moldova context. faced in cross-river trade and travel, due to distract attention and effort from the taxes, tariffs and bureaucracy. A particular ultimate goal of a settlement. n Build on existing engagement and initiatives to develop a coherent strategy concern was the lack of recognition of The German-Russian initiative in 2010, across Member States and EU institutions, documents, particularly passports. which put forward resolution of the and adequately resource the EAS and “It would be useful to find a way to Transnistrian issue as a potential area Delegation to help its implementation. have a valid passport.” of joint EU-Russia collaboration on n Work with Russia to demonstrate that a Participant in research group, Transnistria political and security issues, was perceived resolution will not harm Russia’s long-term positively by all groups. Yet, as in the interests and on a strategy for managing past, the initiative was ad hoc and loosely the wider economy in the event of a coordinated. The EU lacks a strategic resolution, including the Transnistrian and unified approach to the issue, and budget deficit. adequate staff resources in the External n Begin work with Ukraine now to help Action Service (EEAS) and EU Delegation to prepare Ukraine’s chairmanship of the develop and implement this. Cooperation OSCE in 2013 to ensure continuity in the and buy-in to any process from peacebuilding process. neighbouring Ukraine will also be vital. People’s Peacemaking Perspectives: transnistria

A women only seminar convened by the OSCE discusses issues affecting Moldova. © o s c e /i g o r s c h i m b a t o r

Recommendations A Divided Economy n Work with Chisinau to help develop a strategy for a resolution which addresses A theme running through all the research groups, on both sides of the River Nistru, was Transnistrian concerns on: that ordinary people would be better off if the Transnistrian problem were resolved. Yet resolution was not their priority; the primary concern of those consulted was how to the status of enterprises privatised by improve their poor economic situation and life chances. Transnistrian administration job security of Transnistrian public Given the statistics, this is not surprising. Moldova remains the poorest country in Europe. sector workers Average monthly income is around 80 euros. Unemployment is high and an estimated 500,000 out of a working population of 1.2 million live abroad, either in the EU or in Russia. the position of Transnistrian military personnel, including programmes for All those consulted were concerned about economic conditions. Young people were worried reintegration into civilian society about finding jobs, particularly those in Soldanesti, in the North of Moldova close to the Nistru, who compared their situation to that in Ribnitsa across the river in Transnistria. n Work with Moldova and the Transnistrian In Soviet times factories in Soldanesti supplied the heavy industry in Ribnitsa but those administration to improve mutual plants are now closed. Ribnitsa is probably the most prosperous city in Transnistria. Prices recognition of official documents, such as are cheaper than in Soldanesti, wages higher, employment prospects better. Students in marriage certificates and child custody Chisinau also remarked on the disparity, “They have factories and industries there; we need decisions. investment to match that.” Moldova has so far failed to become economically attractive to n Work with Chisinau to make Moldovan Transnistria. passport issuance clearer and easier for Yet Transnistria has for many years run a budget deficit. In 2011 this is projected to be Transnistrians. equivalent to 17 percent of GDP. In effect, Russia funds the gap, sometimes through direct n Work with the Transnistrian administration subsidies. Furthermore, while there is comparative prosperity in the Transnistrian cities of to fully open crossings, including the EU- Tiraspol, Bender and Ribnitsa, as in the rest of Moldova, the are poor. The economy funded Gura Bicului bridge, and to cancel relies on a very small number of large enterprises. the 100 percent customs duty for goods brought in from the rest of Moldova. “ Our leaders should win the Nobel prize for economics n Work with Moldova and the Transnistrian for managing an economy with such a large deficit.” administration to facilitate banking links across the Nistru and to the EU. Businessperson, Tiraspol The conflict divide hinders trade and business development. Professional women in Chisinau described the difficulties in cross-river business: the non-recognition of Transnistria and bureaucracy on both sides of the river create problems in effecting payments and transport of goods. Young business people in Tiraspol echoed this, adding concerns about red tape, lack of training opportunities and lack of access to reasonably “ Ten years ago people priced investment funds and overseas markets. in Transnistria wanted Businesses on both sides of the river need support to prepare for exports to the EU; large and small enterprises need loans to expand and access to EU markets. Groups on both integration [with banks identified support for business start-ups as a particular requirement. Transnistrians Moldova] or recognition; need access to EU finance, especially for Small and Medium-sized Enterprises (SMEs), though to date no mechanism has been established to enable this. now their concern is for With an ongoing alignment process, a sizeable assistance programme, and as the key export the economy.” market for both economies, the EU has a pivotal role to play. By addressing the economic symptoms of the conflict, the EU could help build the conditions necessary for its resolution. Economist, Tiraspol 3. 4. Ensuring long-term Providing unbiased support for social research and contact across the divide information on the will prevent the growing consequences of separation of the younger stalemate and potential generation becoming an resolution will dispel fears obstacle to resolution. and misperceptions on both sides of the divide.

“As a first step, we should respect Recommendations In consultations on both sides of the each other, respecting each other’s n Support the creation of cross-river Nistru there was a clear lack of information different cultures.” networks for youth, building on OSCE and and research about the economic and Participant in youth group discussion, British Embassy projects in areas such as social consequences of the current Transnistria sport, plus joint music programmes and stalemate, and the potential costs and performances. benefits of a resolution. This was as true A generation of young Transnistrians and for international actors as it was for Moldovans are growing up with little or no n Support technical training (in legislation or Moldovans and Transnistrians. contact with their peers on the other side engaging with the media, for example) for of the river. Few young people have crossed young parliamentarians/youth wings of On both sides of the river, stereotypes the river, and unlike the older generations, political parties. colour perceptions of the other side and they have no shared experience from Soviet n Support dialogue and networks between these are reinforced by myths and rhetoric. times. A new generation of Transnistrians specific groups of young people, such as “It is not a conflict zone, not a war has been brought up to think of the rest women and entrepreneurs, drawn from zone: no-one is walking around with of Moldova as a separate country with a both banks of the Nistru, building on the Kalashnikovs: we are human too!” different culture. Older participants pointed ‘Transnistrian Dialogues’ project. Young Transnistrian to this difference between the generations, n Support the creation of joint programming saying that unlike the younger generation… for TV, radio, written and online media Fears about language issues are and social websites on local youth issues, “…we find there is common particularly widespread, with Transnistrians building on the experience of Radio Liberty understanding between us [and our fearing the marginalisation of Russian and in Bender and Publika TV in the South. counterparts in Chisinau]. We have imposition of Romanian as the sole official experience of the Soviet Union: we language under any settlement. know what it means to live and work “I cannot see how my grandmother together.” will manage if she has to speak to her Women’s group, Tiraspol doctor in Romanian.” Young Transnistrian Yet those consulted in the research also highlighted the need, and desire, for The capacity of local civil society and increased social and cultural contact across thinktanks to provide a grass-roots the communities and with their neighbours perspective and an independent voice has in the EU and to the East. The risk is that been depleted, particularly in Chisinau without this, the continued divergence of where many analysts took up official young people and solidification of a sense positions following the 2009 election. of separate identity could constitute an additional barrier to a resolution. “Our young people should meet and be friends; one day they may be ministers.” University student, Chisinau People’s Peacemaking Perspectives: transnistria

5. Including Transnistria in Moldova’s EU alignment process will help ensure that this alleviates, rather than exacerbates the conflict.

Recommendations The majority of people on both sides of the Recommendations n Commission a detailed analysis of the river favour joining the EU (72 percent in n Work with Moldova to include Transnistria peace dividend, including the economic Moldova, 63 percent in Transnistria [New in areas where Moldova is aligning with and political benefits on offer from the EU Age/CBS-AXA survey, 2009]). Business EU norms, and particularly to involve and a cost/benefit analysis for businesses people aspire to greater understanding of, the Transnistrian administration in the of resolution options. and access to, EU markets, while young negotiations on the DCFTA and Visa people look for educational opportunities Liberalisation. n Strengthen the capacity of local civil society and think-tanks to contribute to and improved language skills resulting n Maintain the EU’s Border Assistance deeper analysis of the conflict, including from greater EU integration. Mission (EUBAM), which is helping through provision of international Many also recognise that in moving to regularise trade by Transnistrian expertise on technical issues and conflict towards a resolution, both sides could learn companies and limit illegal smuggling. resolution. from European experience of multi-lingual n Establish EU Information Centres on both n Support joint research projects in states, and of ’s re-unification banks of the river and make information Transnistria and the rest of Moldova, experience, for example. However, during about the EU and the benefits of Russia, Ukraine and and the participatory research, Transnistrians in integration accessible to the wider public. stimulate think-tank work in Russia on the particular, identified a lack of information n Bring Transnistrian higher education benefits to Russia of a resolution. about the EU as problematic for future establishments into the European Higher n Support work on both banks to engage business, cultural and social development. Education Area (Bologna process) and public debate on the tangible benefits to promote student exchanges between “Russia is very active here … we do ordinary people of resolution and support Moldova, Transnistria and the rest of see the EU, but rarely.” the civil society consultative process on Europe. Moldova’s Transnistria strategy. Journalist, Tiraspol n Support foreign language teaching n Support programmes to increase public As Moldova moves further along the path in Transnistria (particular demand is tolerance on language issues and history towards Association (and potentially expressed for English, German and French). on both sides of the Nistru. Accession) with the EU, the government n Continue to fund programmes providing n Work with media in Transnistria and the will need to tackle a whole range of training on EU markets for businesses and rest of Moldova to publicise confidence- economic and political measures associated support joint Moldovan-Transnistrian trade building successes, provide more cross- with alignment. The EU needs to ensure missions to the EU and its Member States. divide coverage and help dispel myths. that this process serves to alleviate, rather than exacerbate the conflict. For instance, in order to resolve the issue of inspections of enterprises required as part of a Deep and Comprehensive Free Trade Agreement (DCFTA), Transnistria’s involvement in negotiations will be vital. “ We must put aside our personal ambitions; we must look for a constructive dialogue.” Researcher, Chisinau PEOPLE’S PEACEMAKING PERSPECTIVES: TRANSNISTRIA

Soldanesti Ribnitsa UKRAINE Methodology

MOLDOVA TRANSNISTRIA In order to gauge the perspectives of the people affected by the confl ict, Saferworld Chisinau convened six separate group consultations: ROMANIA three in Transnistria and three in the Tiraspol rest of Moldova. Two were comprised of women only (one on either side of the divide), while the others involved youth and business people. The number of participants ranged between 8 and 40. UKRAINE All the meetings were held in the major cities of Chisinau and Tiraspol, with the exception of one youth consultation held in the small town of Soldanesti. This town was BLACK selected to provide potentially contrasting SEA perspectives to those in Chisinau. It was

0 40km also chosen because of its proximity to the Transnistrian town of Ribnitsa on the other side of the river Nistru, because the Transnistria is a self-declared with independence and Tiraspol as its administrative inhabitants were likely to be more closely capital. No other country recognises Transnistria’s independence and Moldova, whose capital is Chisinau, continues to claim sovereignty over the territory. This map is intended for illustrative affected by the confl ict divide. purposes only. Saferworld and Conciliation Resources take no position on whether this representation is legally or politically valid. Consultations were structured to encourage maximum engagement from participants and were conducted in the language which participants felt most comfortable. The main themes for discussion were: References and Acknowledgements whether separation of Transnistria from Moldova was a key concern, what problems The fi ndings in this policy brief were drawn from a wider report entitled stemmed from this separation, and how Routes Across the Nistru conducted by Saferworld under the People’s these problems could be addressed. At Peacemaking Perspectives project. For full details of the project and the report the end of each session the moderator on which it is based please visit: www.saferworld.org.uk/PPP summarised the ideas proposed, to allow For further information contact: Luitgard Hammerer, Head of Europe and for ‘real time’ amendments and additions. Central Asia, Saferworld, [email protected] Ideas and proposals from the consultations This document has been produced with the fi nancial were subsequently approved and validated assistance of the European Union. The contents of this are the in discussions with representatives drawn sole responsibility of Conciliation Resources and Saferworld from each of the consultation groups, and can under no circumstances be regarded as refl ecting the position of the and with offi cials and specialists in both European Union. Chisinau and Tiraspol. These ideas were also discussed with international experts in Saferworld Concilliation Resources and Berlin. The Grayston Centre 173 Upper Street 28 Charles Square London N1 1RG London N1 6HT UK UK Phone: +44 (0)20 7324 4646 Phone: +44 (0)20 7359 7728 Fax: +44 (0)20 7324 4647 Fax: +44 (0)20 7359 4081 Email: [email protected] Email: [email protected] Web: www.saferworld.org.uk Web: www.c-r.org The cover picture shows a driver from Transnistria buying fresh watermelons from Registered charity no. 1043843 UK charity no. 1055436 A company limited by guarantee Moldovan farmers on the Chisinau-Dubasari no. 3015948 highway. It was kindly provided by © CLAUS NEUKIRCH/OSCE.