Occasional Paper #21 ARMED CONFLICT IN GEORGIA: A CASE STUDY IN HUMANITARIAN ACTION AND PEACEKEEPING S. Neil MacFarlane, Larry Minear, and Stephen D. Shenfield i Occasional Papers is a series published by The Thomas J. Watson Jr. Institute for International Studies Brown University, Box 1970 2 Stimson Avenue Providence, RI 02912 Telephone: (401) 863-2809 Fax: (401) 863-1270 E-mail: [email protected] http://www.brown.edu/Departments/Watson_Institute/ Publications/acrobat_pub.shtml Thomas J. Biersteker, Ph.D., Director Thomas G. Weiss, Ph.D., Associate Director Frederick F. Fullerton, Assistant Editor Amy M. Langlais, Staff Assistant Statements of fact or opinion are solely those of the authors; their publication does not imply endorsement by the Thomas J. Watson Jr. Institute for International Studies. Copyright © 1996 by the Thomas J. Watson Jr. Institute for Interna- tional Studies. All rights reserved under International and Pan American Convention. No part of this report may be reproduced or transmitted in any form or by any other means, electronic or me- chanical, including photocopy, recording, or any information stor- age and retrieval system, without prior written permission from the publisher. All inquiries should be addressed to Occasional Papers, Thomas J. Watson Jr. Institute for International Studies. ii CONTENTS Preface ......................................................................................... v Executive Summary ................................................................. ix Acronyms.................................................................................. xii Map ........................................................................................... xiv Chapter 1 Introduction ..................................................... 1 Chapter 2 Background ...................................................... 7 Chapter 3 Humanitarian Action.................................... 21 Chapter 4 Peacekeeping.................................................. 49 Chapter 5 Interaction....................................................... 65 Chapter 6 Conflict Resolution........................................ 71 Chapter 7 Conclusion and Recommendations............ 77 Notes.......................................................................................... 84 Annotated Bibliography ......................................................... 96 Appendix I Chronology..................................................... 98 Appendix II Principal Humanitarian Activities in Georgia ..................................................... 104 Appendix III Persons Interviewed ................................... 115 Appendix IV About the Humanitarianism and War Project and the Authors ............. 124 iii iv PREFACE During the past six years, the Humanitarianism and War Project has conducted numerous case studies about humani- tarian action in conflict settings in a wide array of Asian, Latin American, and African contexts. Its study published last year on humanitarian action in the former Yugoslavia reviewed these issues in post-Cold War Europe. The present study represents our first in the former Soviet Union. Such a study was a priority for us inasmuch as the region seems certain in the coming years to pose an increasing num- ber of conflict-related humanitarian challenges to the interna- tional community. The lay of the land in Georgia, Russia, and the other 13 republics into which the Soviet Union splintered is largely terra incognita. In this region, the institutions that have responded often to the suffering of civilians in other crises—UN organizations, governments, and nongovernmen- tal organizations (NGOs)—have little if any experience. The challenges of economic transition from centrally planned to market-based economic systems underlie and ag- gravate the humanitarian consequences of civil wars. The existence of Russia, until recently dubbed a “superpower” and still a regional hegemon in “post-Soviet space,” complicates the definition of relationships between the outside world and the Newly Independent States. The fact that human need is imbedded in very different historical, social, political, and economic circumstances questions the applicability of many of the lessons learned in developing countries. We selected the several armed conflicts in the Republic of Georgia as a vehicle for illuminating the problems of humani- tarian action in the former Soviet Union and as a basis for comparisons with other cases of international humanitarian and peacekeeping involvement in civil and regional disputes. The experience of Georgia is particularly rich and intriguing because of the coexistence of three conflicts, the depth and multifaceted nature of international involvement, and the high stakes of the outcomes to Russia and the Newly Indepen- dent States—and of course to the international community as well. v The field research for this study extended over one year. It involved in the first instance a close review of existing primary and secondary literature on the situation in Georgia, including the civil conflicts and the international response. Available written materials were enlivened by over one hundred inter- views by members of the research team with the actors in the drama. Contributors to the study included officials in Georgia, Abkhazia, and South Ossetia, and from the United Nations, the Organization for Security and Cooperation in Europe, and the European Union. The team also sought out a broad array of officials of international and Georgian NGOs and a wide spectrum of academics and other experts. The research in- volved visits to Georgia in August 1994 and March 1995, as well as discussions throughout the year in Vienna, Moscow, Geneva, New York, and Washington. The team made every effort to secure the views of the parties to the various conflicts and to ensure impartiality in the representation and analysis of those views. While it generally succeeded in arranging first-hand discussions with key actors, repeated efforts to arrange high-level meetings with the Abkhaz authorities were unsuccessful. Nevertheless, the team also visited Abkhazia and South Ossetia. We wish to acknowledge the active cooperation of the Georgian government, the United Nations, the Organization for Security and Cooperation in Europe (OSCE) headquarters in Vienna and its mission in Tbilisi, and many NGOs. Most were pleased to share their views in detail and with candor. We are particularly grateful to the United Nations High Com- missioner for Refugees (UNHCR) personnel in Georgia for providing transport for the team’s visit to Zugdidi and Gali and hospitality within Abkhazia. We are deeply indebted to Dr. George Khutsishvili and his International Centre for Con- flict and Negotiation in Tbilisi for assistance in local arrange- ments and scheduling of interviews, as well as continual and invaluable advice and perspective. As with earlier case studies, we have approached the finished product of our research as a vehicle for allowing those interviewed to speak for themselves. In drawing extensively on the views expressed, we have preserved confidentiality where requested, attributing comments only with the permis- vi sion of those interviewed. The names of most of those who contributed their views to this study are listed in Appendix III. The authors of the report remain responsible for the analysis and conclusions based on that data and for any errors, omis- sions, or misstatements of fact. Since for some readers this case study will represent their first contact with the Humanitarianism and War Project, we list other research monographs produced by the project and by the Watson Institute on the inside front and back covers. More information about the project and its sponsors is pro- vided in Appendix IV. We gratefully acknowledge the finan- cial support from these institutions, which has made the project as a whole and this case study in particular possible. We also wish to express appreciation for editorial assistance provided by Fred Fullerton and Amy Langlais of the Watson Institute. As we circulate this study in early 1996, we are mindful that major political changes have taken place in Georgia in recent months, with still additional developments on the horizon. Georgia has adopted a new constitution. The govern- ment is acting with increasing vigor against its paramilitary former allies, the Mkhedrioni, who have been responsible for many of the abuses that have come to characterize Georgia’s conflicts. National elections are to be held later this month. In December, when the current United Nations Observer Mis- sion in Georgia (UNOMIG) mandate expires, the international community will face decisions about whether to extend its lease on life, and, if so, with what changes. We offer this report as a resource in providing a context for understanding recent changes and for charting a future course. Committed to the continuing monitoring of these develop- ments and to disseminating our findings from this and other studies, we welcome, as always, comments and criticisms from our readers. Thomas G. Weiss Associate Director, The Watson Institute Co-director of the Humanitarianism and War Project Providence, Rhode Island December 1995 vii viii EXECUTIVE SUMMARY This is a study of the world’s response to internal armed conflicts in the Republic of Georgia. The principal features of that response on the humanitarian side were the delivery of emergency assistance and the protection of human rights. That response