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Abkhazia Today ABKHAZIA TODAY Europe Report N°176 – 15 September 2006 TABLE OF CONTENTS EXECUTIVE SUMMARY ...................................................................................................... i I. INTRODUCTION ........................................................................................................... 1 II. CAUSES OF CONFLICT ............................................................................................... 2 A. POLITICAL AND LEGAL...........................................................................................................2 B. HISTORICAL INTERPRETATIONS ..............................................................................................3 1. Competing narratives ..................................................................................................3 2. The 1992-1993 war.....................................................................................................5 3. The peace agreement and peace implementation mechanisms......................................6 C. THE RUSSIAN FACTOR ...........................................................................................................7 III. LIFE IN ABKHAZIA...................................................................................................... 8 A. TODAY’S INHABITANTS..........................................................................................................9 1. “Citizenship” and documentation ................................................................................9 2. Georgian returns to Gali............................................................................................10 B. POWER STRUCTURES............................................................................................................12 1. The 2004-2005 elections and their aftermath .............................................................12 2. Armed forces ............................................................................................................14 3. NGOs and the media.................................................................................................15 C. ECONOMICS AND TRADE ......................................................................................................15 1. Budget, finances and banking....................................................................................16 2. Foreign assistance and investment.............................................................................16 3. Agriculture and industry............................................................................................17 4. Tourism ....................................................................................................................17 5. Privatisation..............................................................................................................18 6. Social services and education ....................................................................................18 IV. GEORGIA’S IDP CHALLENGE ................................................................................ 19 A. POLITICAL AND MILITARY DIMENSIONS................................................................................20 1. Crackdown on guerrillas ...........................................................................................20 2. Reforms in the government in exile...........................................................................21 3. IDP political participation in mainstream Georgian politics .......................................22 B. STATE ASSISTANCE FOR IDPS...............................................................................................22 1. Defining a new strategy.............................................................................................23 2. Housing ....................................................................................................................24 3. Social services...........................................................................................................25 V. CONCLUSION.............................................................................................................. 26 APPENDICES A. THE GEORGIA-ABKHAZIA CONFLICT ZONE.........................................................................27 B. GLOSSARY ..........................................................................................................................28 C. ABOUT THE INTERNATIONAL CRISIS GROUP .......................................................................29 D. INTERNATIONAL CRISIS GROUP REPORTS AND BRIEFINGS ON EUROPE................................30 E. INTERNATIONAL CRISIS GROUP BOARD OF TRUSTEES.........................................................32 Europe Report N°176 15 September 2006 ABKHAZIA TODAY EXECUTIVE SUMMARY Conflict over Abkhazia, squeezed between the Black Sea emergency solutions. Although a national integration and the Caucasus mountains, has festered since the 1992- strategy for IDPs is now being drafted, the displaced 1993 fighting. Internationally recognised as part of are the poorest section of Georgian society. They are Georgia and largely destroyed, with half the pre-war disappointed by the government’s failure to keep its population forcibly displaced, Abkhazia is establishing promises of returning them to their homes, or provide a the institutions of an independent state. In twelve years better life for them in Georgia, yet have little capacity to since the ceasefire, the sides have come no closer to a mobilise politically. settlement despite ongoing UN-mediated negotiations. This report looks at the causes of conflict, conditions Tensions rose in July 2006 when a forceful Georgian in Abkhazia and reforms affecting Georgian IDPs. A police operation cleaned a renegade militia out of upper subsequent report will assess the negotiation and Kodori Gorge, the one part of pre-war Abkhazia not peacekeeping mechanisms, with specific recommendations controlled by the de facto government in Sukhumi. Since on what should be done to facilitate resolution. then Georgian-Abkhaz negotiations have been frozen. Tbilisi/Brussels, 15 September 2006 While Georgia asserts that it is committed to a peaceful resolution of the conflict, its military budget rose in 2005 at a rate higher than any other country in the world. Bellicose statements by some officials do not increase confidence. Georgia insists that the problem is Russia, whose increasingly assertive policy in the region includes support for Abkhazia. Abkhaz seek independence, arguing that they have a democratic government, rule of law, defence capabilities, and economy worthy of a state. In the past decade they have made strides to re-establish a sense of normality. The first round of the 2004 presidential election offered voters a choice and a genuine contest. Yet disputes over the result and Moscow’s intervention, including closing the border, led to a power sharing arrangement between the two top contenders. The entity’s population includes Abkhaz, Armenians, Russians and ethnic Georgians. The latter, who live primarily in one district (Gali), represent at least a quarter of today’s residents. But over 200,000 remain displaced in Georgia proper, unable to participate in life in their homeland. For Georgia the unresolved conflict is an affront to its state building project, impeding the consolidation of national security, democratic institutions, economic development and regional integration. The many internally displaced persons (IDPs) impose heavy political, economic and psychological burdens. For over a decade, Tbilisi had no integration policy, relying instead on short-term, Europe Report N°176 15 September 2006 ABKHAZIA TODAY I. INTRODUCTION and Abkhaz. The displaced have returned in significant numbers only to the southernmost Gali district.4 Close to fifteen years after the first exchanges of fire Tbilisi has exercised no political, military or economic in August 1992, the Georgian-Abkhaz conflict remains control over Abkhazia for the past thirteen years, while Abkhazia has been developing its own state institutions. unresolved. The Abkhaz claim a right to statehood based 5 The recent recognition of Montenegro’s independence, on national self-determination. Georgia argues that 6 the sanctity of international borders and state sovereignty discussions about Kosovo’s final status and President guarantees it the right to control Abkhazia, whose pre-war Putin’s statements about the need to determine universal principles for self-determination7 have all increased Abkhaz ethnic Georgian majority was expelled during the fighting. 8 Moreover, it sees the conflict as primarily a Russian- optimism about their own prospects for recognition. For Georgian one, blaming Moscow for intervening in support most of the 1990s, Abkhaz elites were willing to discuss of the Abkhaz and interfering with its territorial integrity. “common state” options and federal arrangements with Georgia. However, opinion shifted, and a 1999 referendum Abkhazia borders the Russian Federation to the north and adopting the constitution of Abkhazia as an independent 9 the Georgian region of Samegrelo to the south east. It has state passed with a huge majority. Policy makers and 10 an area of 8,700 square km (just under Kosovo at 10,887 popular opinion are now set on full sovereignty. Political sq km and Cyprus at 9,240 sq km), an eighth of Georgia’s territory, including nearly half its coastline. Its population is currently around
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