March 2015

Dialogue and Diversity in Public opinion survey

Logo using multiply on layers Summary of results

Logo drawn as seperate elements with overlaps coloured seperately The Association of Women of Abkhazia

The Association of Women of Abkhazia (AWA) was established as a non-governmental organisation in 1999, following a conference that was organised by a group of women dealing with the human and material losses, disabilities, psychological and physical trauma that their society had suffered as a consequence of the 1992-93 war.

AWA strives to

 protect the rights of women;  promote better conditions and opportunities for women’s participation;  strengthen the social and political position of women through civil society development;  encourage co-operation and networking, and  participate in peacebuilding processes in the region and internationally.

AWA provides social and psychological support to socially vulnerable women, offers free legal advice, and delivers a variety of educational activities, such as training seminars, conferences and public discussions. Its members co-operated closely with lawyers and members of the Abkhazian parliament to draft the Law on Gender Equality, which was adopted in 2009. AWA activists believe in the potential in women to promote peace and security, and to transform cultures of war and violence into cultures of non-violence and collaboration. They therefore work to foster the (political) participation of women across Abkhazia and from all ethnic and religious backgrounds, including in remote and isolated villages.

Conciliation Resources

Conciliation Resources is an independent organisation working with people in conflict to prevent violence and build peace. We provide advice, support and practical resources to help divided communities resolve their differences peacefully. In addition, we take what we learn to government decision-makers and others working to end conflict, to improve peacebuilding policies and practice worldwide.

Cover photo © Ibragim Chkadua

Dialogue and Diversity in Abkhazia: Public opinion survey – Summary of results • 3 Preface

As a peacebuilding organisation, Conciliation analysis. The aim was to enhance the capacity of Resources sees issues around minority rights civil society actors in Abkhazia to facilitate inter- and inclusion in the wider context of conflict community dialogue, and to formulate priorities transformation. Establishing a long-term, and suggestions for better integrating and taking sustainable peace often requires a long process into account the needs of diverse ethnic and of supporting dialogue, repairing relationships, religious groups. and addressing the underlying causes of In order to get a better picture with regard to diverse conflict. Working with all those involved in and groups in Abkhazia, their perceptions and needs affected by a conflict is critical to bring about a concerning Abkhazian society and their respective lasting change. places in it, AWA began the project with a series The violation of human rights and civil liberties lies of focus groups and in-depth interviews among at the heart of many violent conflicts. Unmet social, representatives of a range of ethnic and religious political and economic needs may provoke opposition communities. The results of this qualitative research and civil unrest. Processes and institutions that are presented in more detail in this publication. promote people’s rights and address exclusion are Apart from providing first-hand information on therefore an integral part of peacebuilding. people’s perspectives, the research process Conciliation Resources has been working on the prompted a range of interlocutors to think, and Georgian-Abkhaz peace process since 1998, working generated interest in the topic among diverse closely with local partner organisations to promote circles within Abkhazia. Many of the respondents dialogue across various ethnic and political divides, continued to play an active role in the project, mainly and supporting local actors to address inequality and by engaging in a regular dialogue platform. This political tensions in their communities. platform brought together around fifteen individuals representing seven ethnic/religious groups, who Though inter-ethnic relations and minority inclusion met every other month to discuss serious issues of had long been identified as a pressing issue by a concern, compare perspectives, voice grievances number of Conciliation Resources’ interlocutors and find ways of supporting one another. This in Abkhazia, there had been a lack of concerted, dialogue was sustained throughout the lifetime of strategic work to improve the situation in this the project, even during periods of political turmoil regard. Individual cases relating to social and and instability in Abkhazia. political inclusion had been supported by the public chamber, and a couple of leading non-governmental Participants also attended joint training sessions, organisations in particular had been vocal on the which enhanced their understanding of various need for change in regard to managing diversity. approaches to inclusion and mechanisms for And yet, the lack of structured co-operation, and the civic engagement, and gave them opportunities to absence of a focus for collaborative discussion and generate ideas for collaborative activities to engage strategising, had allowed work in this area to slip their respective communities, the general public down the list of priorities. We were therefore grateful and those in positions of decision making. Small- for the opportunity in 2014 to put issues of minority scale initiatives promoting inter-community dialogue rights and inclusion back on the agenda in our work thus involved more than 300 representatives of a and that of our local partners. variety of ethnic/religious groups in four regions of Abkhazia, among them a high percentage of youth Promoting ‘Dialogue and Diversity’ and ‘multipliers’, such as those working in the in Abkhazia teaching profession. This publication was produced as part of ‘Dialogue On the whole, participants have come away from and Diversity: building confidence between ethnic this experience with a greater sense of confidence, and religious groups in Abkhazia’, a project funded mutual understanding and motivation to keep through the Confidence Building and Early Response active and connected. Their dialogue continues, and Mechanism (COBERM), a joint EU-UNDP initiative. further consultations with policymakers are planned Over the course of 2014, the Association of Women to take forward action to help people in Abkhazia of Abkhazia (AWA) worked together with other civic work toward a society that is truly ‘shared’ by all its actors and in close consultation with Conciliation subjects in an inclusive and collaborative fashion. Resources, to reach out to diverse ethnic and religious communities in Abkhazia and bring them together for exchange of information and joint

4 • Conciliation Resources Dialogue and Diversity in Abkhazia: Public opinion survey – Summary of results • 5 Key observations be a point of contention and controversy. ‘Dialogue Though it did not last long, a number of practical and Diversity’ participants of various backgrounds lessons and suggestions can be drawn from this felt strongly they needed to find ways of making project that might be relevant for other local and this serious issue a unifying factor for Abkhazian international actors engaged in the Georgian- society, rather than a divisive one. In fact, the Abkhaz context: qualitative research has revealed a great degree of understanding and sympathy on the part of non- The fact that diverse groups of Abkhazian society Abkhaz respondents regarding Abkhaz concerns largely share key concerns and interests is about their language and its future survival. They not sufficiently acknowledged and utilised. On acknowledge that their own native languages are a number of occasions, people involved in the not facing such threat, as they are widely spoken project found that, notwithstanding their different in their ‘historical homelands’. Many , backgrounds and affiliations, there are more Estonians, , Greeks, Russians and things they have in common than that divide them. Ukrainians expressed interest and readiness to Respondents would often refer to the shared Soviet learn the , or at least for their past, the hardships of the war and post-war period, children to do so. However, the lack of adequate and how people pulled through, supporting one language-learning programmes, methodology another. However, in today’s Abkhazia, many of and qualified teaching personnel poses severe the rural communities are fairly homogenous in obstacles. While these problems affect Abkhaz and terms of ethnic composition. They often live isolated non-Abkhaz residents alike, there are particular from each other, with little interaction. This lack of difficulties when it comes to teaching and learning information leaves room for myths and stereotypes. Abkhaz as a foreign language: The past year has shown that small-scale  Apart from the need to overhaul the education initiatives can make a real difference in breaking system and modernise textbooks and approaches perceived exclusion and helping people with little to teacher training, participants felt it would or no exposure to other cultures and perspectives be beneficial specifically to train non-Abkhaz to connect and collaborate. It would be fairly teachers to teach the Abkhaz language in their straightforward and inexpensive to establish more respective communities. sustainable and regular mechanisms for exchange between local communities, led by civil society,  ‘National schools’ were a topic that often came up schools and/or local authorities. in the context of language proficiency and related problems. Participants held various, sometimes The media could play a more constructive and conflicting views in this regard, and thought it active role in promoting ethnic and religious would be helpful if could learn more diversity in Abkhazia. Regular TV programmes and specifically from international experiences of newspaper columns dedicated to the life of various managing education in multi-lingual settings. communities residing in Abkhazia, their concerns  One particular recommendation concerned and hopes for the future, could positively impact on Abkhaz language programming on Abkhazian TV how people relate to one another. channels, where introducing subtitles in Russian Project participants also suggested political was deemed to be helpful. measures that could be taken to introduce more Involving Georgians from Gal/i in a wider ‘multi- systemic changes: ethnic’ context builds confidence and is less threatening than bi-lateral interaction. It has  A Parliamentary commission on inter-ethnic proven effective to engage Gal/i residents in the relations could be reinstituted to ensure the context of this project alongside a range of ethnic/ needs of diverse ethnic and religious groups religious groups living in Abkhazia. This multi- are taken into account when legislation is being ethnic approach is perceived by many to be less defined and adjusted. threatening and confrontational. It has provided  It would be beneficial to introduce cultural Georgians in Abkhazia a safe space to engage diversity in the school curriculum, e.g. providing in a constructive and frank manner, comparing information on various nationalities that make perspectives and concerns with fellow residents of up Abkhazian society and have played roles in its Abkhazia. During ‘Dialogue and Diversity’ sessions history and development. and training workshops, Georgian participants Issues around the Abkhaz language, its were very vocal in expressing their needs and fears, vulnerability and revival, concern not only ethnic which indicates a great level of confidence in the Abkhaz but the population of Abkhazia as a whole. rest of the group. With regard to follow-up activities The precarious state of the Abkhaz language can and local initiatives, the Georgian participants

Dialogue and Diversity in Abkhazia: Public opinion survey – Summary of results • 5 were among the most active in reaching out at the approaches and policies into practice with integrity community level, which is a sign of commitment and in a transparent manner. While Abkhazians are and self-confidence. It is particularly encouraging guaranteed equal rights before the law, in practice a that the initiatives were carried out in consultation, combination of favouritism and corruption can lead and partly in collaboration, with local schools to unequal treatment, which often manifests through and local authorities, which will hopefully enable existing clan structures. Ethnic Abkhaz, who tend participants to sustain good relationships with these to have the strongest networks and personal links interlocutors in the future. with the ruling elite, on the whole appear to enjoy privileged treatment. In the past, the efforts of Conciliation Resources and other actors that have focused on more bilateral A lot more could be done to ensure all Abkhazians interaction between Gal/i and Sukhum/i have are guaranteed equal opportunities, regardless of encountered obstacles, not least because they were their ethnic or religious affiliations, for instance too easily perceived in relation to the wider conflict, through enhancing civic awareness, information and Georgian-Abkhaz relations overall. We consider about and access to public services. Abkhazian that a more inclusive engagement of Georgians civil society has stressed the need to establish in a multi-ethnic framework is the way forward to effective and inclusive mechanisms for civic control forming improved and trusting relationships that and monitoring. can allow people across Abkhazia to articulate Ultimately, people need to feel sufficiently included their needs and grievances, and find mutually and protected in order to engage in open and acceptable solutions. honest discussions about Abkhazia’s future and A lack of robust and transparent structures what type of society they want to build together, and procedures for governance leaves room for following which values, applying which principles, selective application of existing legal frameworks. and forming which kind of relationships with other This practice is often perceived as discriminatory actors in the neighbourhood. And this type of and can give rise to ethnic/religious tension. discussion is crucial for people in Abkhazia to find The provision of equal rights and opportunities ways to live in peace and with a sense of security in requires strong institutions and personnel that put the wider region.

Although there is no clearly-defined or consistent distinction in the use of the terms ‘Abkhaz’ and ‘Abkhazian’, in this publication we have used ‘Abkhaz’ to denote the ethnic Abkhaz population, individuals or their language, and ‘Abkhazian’ to refer without ethnic distinction to the residents of Abkhazia and its institutions.

This publication was made possible thanks to the financial support of the Confidence Building and Early Response Mechanism (COBERM), a joint EU-UNDP initiative, and the Netherlands’ Ministry for Foreign Affairs. Contents of the following research summary are the sole responsibility of the author and cannot be taken to reflect the views of Conciliation Resources or the donors.

6 • Conciliation Resources Dialogue and Diversity in Abkhazia: Public opinion survey – Summary of results • 7 Summary of results Almost all the respondents spoke about the natural beauty and benign climate of Abkhazia and their Liana Kvarchelia perception of Abkhazia as the place where they feel most comfortable and at home. Summary results of a public opinion survey on the situation of minorities in Abkhazia, carried out by Finally, many respondents stressed Abkhazia’s the Association of Women of Abkhazia special way of life and the common mindset shared by local residents irrespective of their ethnic Introduction identity. These had evolved as a result of many years of different cultures’ coexistence and interaction, The purpose of the survey conducted by the their cross-fertilization and mutual influence. Association of Women of Abkhazia (AWA) was to Minority representatives emphasised that in identify aspects of public perception of ethnic and their ‘historic homelands’ outside Abkhazia (be it religious minorities and their situation in Abkhazia. , Armenia, Greece or ) they were not The qualitative research was carried out through in- perceived as “svoi” (belonging/their own). In their depth interviews and focus group discussions, with native countries, Abkhazian Armenians, Russians 20 in-depth interviews and 5 focus groups in total. and others are more often viewed as a separate 70 people were surveyed, including representatives group with its own civic identity, culturally different, of different ethnic groups (Abkhaz, Armenians, to an extent, from the “parent” group. Outside Estonians, Georgians/Mingrelians, Germans, Abkhazia representatives of ethnic minorities from Greeks, Jews, Poles, Russians), as well as followers Abkhazia are often called the “Abkhaz” and they of different faiths and traditions (Catholic, Jewish, tend to feel as such when away from Abkhazia. Lutheran, Muslim and Orthodox Christian). The qualitative survey did not include any quantitative In the eyes of the Abkhaz repatriates who occupy data and should be viewed as a reflection of a their own special place in the architecture of number of trends in the public perception of the Abkhazian society and observe social processes at important issue of cultural diversity in Abkhazia. arm’s length (due to a language barrier, first and foremost, as well as cultural differences) different The survey’s authors set out to identify the way in ethnic minorities in Abkhazia have more similarities which different groups in society: 1) perceive the than differences. This is especially true of the urban situation of various ethnic and religious groups in population. “It is curious but when you look at each Abkhazia in relation to their rights; 2) determine other you must notice the aspects that distinguish the degree of minorities’ participation in social and you from one another. Yet when we as a group political processes; 3) understand the nature of the of repatriates look at you, we see to the contrary nation-building process in Abkhazia and related how much you have in common, linguistically and challenges and opportunities. culturally. You have a considerable shared life What unites ethnic and other groups in Abkhazia? experience and do many things in the same way,” – said one repatriate from Turkey in an interview. The survey results support the suggestion that Abkhazian society has laid down sufficiently solid Although in relation to the outside world and in the foundations for accord and cooperation between eyes of the outside world a certain commonality has different ethnic and religious groups. The shared emerged in Abkhazia, with shared citizenship and experiences, achievements and problems that the a more or less identical way of life, ethnic identity entire Abkhazian society has had to face in recent remains an important factor in internal relations. history, play a significant role. Many respondents, particularly the older generation, referred positively «It is curious but when you look at to the shared Soviet past, when several generations each other you must notice those of residents were growing up in the spirit of internationalism. aspects that distinguish you from Common interests linked to the need to defend one another. Yet when we as a Abkhazia from external threats and the shared group of repatriates look at you, we experience of overcoming difficulties during and see to the contrary how much you after the war also serve as unifying factors. It should have in common, linguistically and also be noted that the Georgian-Abkhaz war did not just rally the majority of the current Abkhazian culturally. You have a considerable population, but also created interethnic tensions, shared life experience and do many in particular between the Georgian/Mingrelian things in the same way». population and the rest of the citizens.

Dialogue and Diversity in Abkhazia: Public opinion survey – Summary of results • 7 When asked how they categorise other people As regards the formal aspects of the matter, some respondents preferred to talk in terms of all those surveyed think that the Abkhazian social status (rich/poor), geography (rural/urban Constitution and the current legislation guarantee population), level of education and so on. For a all citizens’ equality before the law, irrespective of significant part of those surveyed, however, ethnic their ethnicity, religious belief, gender and so forth. identity remained the most important identifier. They also agree that the Abkhazian legislation Respondents commented that if someone is being protects their cultural and linguistic identity. For talked about in society, their nationality will be example, the so-called ‘national schools’ with mentioned in the conversation. Indeed, referencing minority languages as languages of instruction someone’s ethnic identity provides additional social get public funding.1 In 2012 Abkhazia adopted the and cultural information about that person or Law on the Freedom of Conscience and Religious their situation. Associations, guaranteeing its citizens freedom of conscience and religious belief. Only Jehovah’s Survey responses contain references to Witnesses are currently banned in Abkhazia ethnic identity, with both positive and negative because their activities violate the country’s connotations. Negative aspects are closely linked legislation. In practice, however, their activities are to social divisions in society, lack of equality not interfered with. before the law or the selective treatment by law enforcement agencies. Some respondents spoke of the fact that they were wary of starting a «I try to have nothing to do with the conflict with the Abkhaz in certain situations even Abkhaz who always get preferential if their rights were infringed as a result: “If, God forbid, I have a car crash, I find it easier to deal treatment.» with an Armenian than an Abkhaz. I try to have nothing to do with the Abkhaz who always get In answer to the question regarding whether preferential treatment.” all Abkhazian citizens enjoy equal rights and opportunities, almost all the respondents affirmed None of the respondents cited religion as an that this was true of the Abkhazian legislation. Many identifier. As seen from the survey, religious felt that in practice, however, a person benefits affiliation does not impede one’s ability to enjoy first and foremost from their social status and one’s rights in Abkhazia. At the same time, there connections, which tend to be stronger among the were certain common features in the perception ethnic Abkhaz. The respondents did not mention of the Muslim community as a whole rather than the provision in the Law on Presidential Elections individual Muslims. This does not concern all in Abkhazia, under which only an ethnic Abkhaz can Abkhazian citizens calling themselves Muslims, become President of Abkhazia, save for when they as many of them are Muslim in name only. It is were asked about guarantees of equal rights for rather the case with the new wave of Muslims every citizen. Despite the fact that the respondents who have come to settle in Abkhazia as a result considered the situation discriminatory they did not of Islam consolidating its foothold in the North question it per se, recognising that ethnic Abkhaz Caucasus. The opening of the prayer house in play a leading role in building and governing the Sukhum and the issue of building a mosque raised [Abkhazian] state. In the words of one respondent by the new Muslims in Abkhazia have sparked off (Armenian), “without the Abkhaz there would be no fears in some parts of Abkhazian society about the [Abkhazian] state.” potential use of the local Muslim community as a channel for furthering Islamic fundamentalist The Abkhaz respondents also confirmed that all ideology. Practising Muslims, as pointed out by one groups in Abkhazia enjoyed equal rights. At the same time some of them preferred to discuss the Muslim respondent, are closely monitored by the situation of the ethnic Abkhaz and threats to their security services and law enforcement agencies, which creates a certain discomfort for that group. 1 Alongside Russian and Armenian schools there are also state- Yet their religious persuasion does not impede the funded Georgian schools in Abkhazia. Despite the fact that followers of Islam from accessing education or Georgian schools (12) in the town of Gal and the Upper Gal career opportunities. region formally became Russian language schools after the Georgian-Abkhaz war, and literature are still On the whole the topic of religion was only taught there. All the 12 schools in the Lower Gal region still use mentioned by the Georgian focus group in Georgian as the language of instruction. connection with the discussion of the residents’ The problem lies in the deficit of textbooks in Abkhaz in a need to open Orthodox churches in the Lower and number of subjects. Moreover, there are no Abkhaz textbooks translated into minority languages, resulting in the teaching in Upper Gal regions (residents in remote villages find those schools being mainly based on the textbooks, published in it very difficult to get to the ). Armenia, Russia and Georgia respectively.

8 • Conciliation Resources Dialogue and Diversity in Abkhazia: Public opinion survey – Summary of results • 9 identity (demographic situation, the state of the As for professional growth, most respondents Abkhaz language, granting Abkhazian citizenship (comprised mostly of well established professionals) to ethnic Georgians). The Abkhaz group was divided spoke of the fact that a lot depended on the as to the origin of thеse problems. Some were more individual, his or her education level, drive and inclined to talk about deficiencies in the application professional skills. When candidates are considered of the state language or the process of repatriating for employment in the business sector, preference is ethnic Abkhaz who currently reside outside given to those who have the necessary professional Abkhazia. Others preferred to put the responsibility skills and are suitable for the job, irrespective of for many problems squarely at the feet of the their ethnic origin. minorities who, according to them, were failing to Cited barriers to employment included mainly learn the state language and created a demographic objective factors, such as job shortages, lack of challenge for the Abkhaz. manufacturing facilities, limited opportunities The respondents were also divided as to whether resulting from Abkhazia’s small size and so on. additional laws guaranteeing minority rights were There are, however, subjective factors at play that necessary. A small proportion of the respondents create inequality, such as the clan system3 and spoke in favour of adopting special laws to protect corruption. Most respondents named government minorities’ rights. They found it difficult, however, to office as the area where your family ties do specify what they should be. The majority of those matter, which makes it much harder for minority surveyed thought that there was no need to adopt representatives to have a career. This is particularly new laws, but there was a need to properly enforce true at the level of senior government posts. the existing legislation. This means that businesses base their recruitment policies on professional skills, with the aim of Opportunities for self-realisation achieving greater efficiency, whereas government The answers to the questions of whether agencies sacrifice efficiency to the future civil Abkhazia had created conditions for а) the self- servants’ kinship and ethnic solidarity. fulfillment of minorities in the area of education, b) professional and career opportunities - showed There is another very important aspect to consider. that in many respects there was little difference According to one ethnic Abkhaz respondent, the between different ethnic groups’ access to unrelenting pursuit of jobs in the civil service, with various opportunities. the low wages they entail, is testimony to the fact that the administrative resource is considered by For example, representatives of all ethnic groups some as a means of bettering their social status and spoke about the existence of equal access to the as a means for personal enrichment. education system in Abkhazia. The problem was not the limited access to education but the fact that the The same applies to serving as an MP. According quality of that education, at secondary school level to one respondent, during parliamentary in particular, left much to be desired, which was true elections in the past there was a gentlemen’s for all ethnic groups without exception. agreement that the Abkhaz would not field their candidates in certain constituencies, in order At the same time two respondents spoke of to give a chance to representatives of other the difficulty of qualifying for state quotas to ethnic communities, whereas during the last study outside Abkhazia. In instances when the parliamentary election that agreement was broken. opportunities to study the Abkhaz language are One of the likely explanations was that to a certain inadequate, the mandatory requirement, introduced category of citizens the value of administrative in 2014, to pass an Abkhaz language exam for resources, including the corruption element of it, admission to Russian universities (based on the had increased.4 quotas provided by Russia), limits the possibility for minority representatives (as well as the Abkhaz who do not speak the state language) to participate in the 3 The Abkhaz, Armenians and Mingrelians have particularly close competition for a university place. family ties; they live compactly both in rural and urban areas. The problem of access to quality education raises There is much less cohesion among the Russians who mostly live in urban areas. While recognising on the whole negative the issue of social divisions. Preparing for university consequences of the clan system, the respondents, particularly entry requires additional private tuition, though ethnic Russians, spoke of the positive aspects of strong family many in Abkhazia cannot afford this.2 ties, namely, mutual assistance, looking after the elderly and orphans and others. 4 This does not imply that corruption in Abkhazia has particular 2 In areas such as health care, social differences also play an ethnic roots. Representatives of all ethnic groups tend to important role: rich people can afford treatment that is beyond participate in corrupt practices. Corruption as a phenomenon the means of the poor. presents a challenge to the entire society.

Dialogue and Diversity in Abkhazia: Public opinion survey – Summary of results • 9 Poor representation of ethnic minorities in of the republic and not just the limited number of government institutions is typical at all levels Abkhaz speakers. of government. A representative of one rural At the same time, subtitles are no substitute for community, for example, pointed to the fact that having a good command of the state language. the Abkhaz, often from other , Almost all the respondents acknowledged the were appointed to serve as heads of administration importance of the broad adoption of the Abkhaz in a number of local villages, while the local cadre language, yet very few of them make an effort to were ignored. master it. Many minority representatives spoke of the difficulty of acquiring Abkhaz at their age Poor representation of ethnic because of its complexity but wanted their children minorities in government institutions to speak fluent Abkhaz. At the same time they pointed out a number of serious problems in the is typical at all levels of government. current conditions:

As regards business opportunities, many 1. Deficit of Abkhaz language teachers; businessmen, according to the respondents, face 2. Shortage of text books which use modern some pressure from criminal groups (protection language teaching methodology; rackets), irrespective of their ethnicity. In cases like these the Abkhaz and, to some extent, Armenians 3. Overall absence of language teaching resort to family ties/kinship in order to avoid or programmes that accommodate different at least mitigate that pressure. The rest of the starting levels of the students; Abkhazian citizens who might not enjoy the same 4. Absence of an official policy that creates the protection by the law enforcement agencies are left conditions for and promotes the study of the to fend for themselves. state language throughout Abkhazia;

General and specific problems 5. A purely formal attitude of some members of the teaching profession to the teaching of the In addition to these general problems such as the Abkhaz language, in particular, to children from poor quality of education or social divisions, the non-Abkhaz families; respondents mentioned the overall cultural decline and decline of political culture in society. Personal 6. Some respondents complained about individual conflicts often arise from ignorance while domestic teachers’ intentional attempts to discourage conflicts give rise to ethnic stereotypes. non-Abkhaz children from studying Abkhaz. Such teachers are likely to belong to the part of The respondents also mentioned a number of Abkhaz society who think that a good command specific problems that are particular to minorities. of the language would obliterate the difference For example, the surveyed repatriates (ethnic between the titular nation and the rest, which Abkhaz) talked about isolation caused by the they do not consider desirable. language barrier (many of them do not speak either Abkhaz or Russian). They do not always or Many respondents expressed concern that the entry immediately understand social/other mechanisms into force of the Law on the State Language in the that operate in the post-Soviet environment and Republic of Abkhazia in 2015 (in the absence of there are no proper programmes for the integration the necessary conditions, mentioned above) could of repatriates. As a result this group perceives a in practice restrict the rights of ethnic minorities. degree of social isolation in Abkhazian society and Some spoke of their feeling of confusion. They did often depends on information sources from another not know whether to prepare their children for a life state (e.g. Turkey, Syria). in Abkhazia or for emigration. In fact, the issue of information policies is relevant not just to the repatriates who speak neither Many minority representatives spoke Abkhaz nor Russian but also to the entire Russian- of the difficulty of acquiring Abkhaz speaking population. The majority of the Abkhazian state TV channels broadcast in Abkhaz, without at their age because of its complexity subtitles. Some respondents pointed out that but wanted their children to speak subtitles could really help residents to understand fluent Abkhaz. and master the Abkhaz language and feel better connected to the interests and issues facing their The Abkhaz were divided on the subject of the society. This would also mean that the authorities implementation of the Law on the State Language in use TV to communicate with the entire population the Republic of Abkhazia. Some of them were mostly

10 • Conciliation Resources Dialogue and Diversity in Abkhazia: Public opinion survey – Summary of results • 11 sympathetic to the fears of other minorities and Georgians), stayed away during the war and the thought that those concerns should be considered difficult post-war period. when taking the necessary steps to implement the Those whose rights have been violated look Law. Some of them spoke of the need to reform elsewhere for help when the authorities fail to the Abkhaz language to make it simpler and more uphold their claims. In the words of one ethnic accessible and contribute to its greater uptake. They Abkhaz respondent “since 2008 many local Russians also pointed to the need for a gradual introduction have increasingly felt that they do not belong in of the language and a possible establishment of a Abkhazia as Abkhazian citizens. When they fail to transitional period. get support from the Abkhazian authorities, with The other part of the Abkhaz respondents insisted housing issues in particular, they feel the need to on every citizen’s duty to learn the state language seek assistance from the Embassy of the Russian and suggested that ethnic minority representatives Federation.” should make greater efforts to master the The respondents gave examples of ethnic Abkhaz Abkhaz language. successfully avoiding penalties for breaking the law. In addition to the issues already covered above, This is particularly prevalent in traffic accidents. discussions covered the ‘passportisation’ process Corruption, family ties, ethnic solidarity and an (issuing passports) and citizenship. The Gal focus awareness of themselves as representatives of the group spoke about the legal vacuum many of the titular nation – often lead to impunity and manifest Gal residents found themselves in after it was inequality before the law, which the minorities see announced that their passports would get annulled. as an expression of discrimination against other The focus group participants did not go into details ethnic groups. but mentioned the restricted rights of those who did The respondents emphasized the negative not have any legal documents, especially amongst role played by the isolation of the ethnically people whose passports had been withdrawn. homogenous villages and districts of Abkhazia. Representatives of other ethnic groups were Rural communities rarely engage with one another also concerned by the issue of citizenship. Some and are excluded from the Abkhazian information of the respondents, for instance, spoke of the space. Communication in these communities takes fact that young people (non-Abkhaz) who left place mostly in the respective native languages Abkhazia to study abroad between 1994 and 1999 (Armenian or Mingrelian); their poor command of lost their Abkhazian citizenship because they did Russian creates serious communication problems not have an uninterrupted period of residence in when dealing with other groups. These isolated Abkhazia during that time, as required by the Law communities are poorly informed about each other’s on Citizenship. lives and problems. They do not have the feeling of belonging to a common entity that includes other Alienation of property rights is one of the most groups; they live autonomously, without any sense of critical issues for ethnic Russians in Abkhazia. As engagement in more global processes taking place a result of many Russians and Greeks being absent in Abkhazia. from Abkhazia over a long period of time after the war, their flats and houses were occupied and reallocated, mostly to ethnic Abkhaz. Examples were These isolated communities are poorly given of elderly Russians of retirement age who informed about each other’s lives and had lost their property to fraudsters and corrupt housing department officials who had sold their problems. They do not have the feeling properties off to third parties, even if the former had of belonging to a common entity stayed in Abkhazia without interruption. Many courts that includes other groups; they live have ruled in favour of the original owners yet the enforcement of the rulings has proved difficult, if autonomously, without any sense of not impossible. There have also been instances of engagement in more global processes selective justice. taking place in Abkhazia. At the heart of the so-called ‘housing issue’ are corruption and poor law enforcement, which Communities in border areas often gravitate predominantly affect the most vulnerable sections of towards the neighbouring countries, which at society; there is also the inability of the authorities, times play a more significant role in securing when there is such an acute need for housing, to their livelihoods. The unresolved social and keep flats empty when the original residents of infrastructural problems in the isolated these flats (in this case, not the flats belonging to communities (roads in poor condition, absence of

Dialogue and Diversity in Abkhazia: Public opinion survey – Summary of results • 11 running water etc) are seen as unique to their own What can be done? district or village and interpreted as an expression of ethnic discrimination when in reality these cases Talking about the prospects of nation building in may not have any ethnic connotations. Abkhazia the majority of the respondents supported The survey, on the whole, showed that minority the idea of creating the Abkhazian nation on the representatives belonging to the less active part of basis of a common civic identity, while preserving society (ordinary citizens, largely from rural areas) the minorities’ cultural rights. Some respondents acutely feel a communication deficit. They support suggested that the ethnic identity designation the idea of a dialogue and cooperation between should be removed from Abkhazian passports. different ethnic groups. People are interested Some participants in the ethnic Abkhaz focus group in contacts with other communities from other identified civic identity with the ethnic Abkhaz districts. The more active, professionally established identity, which also reflects their perception of a and prominent representatives of ethnic minorities certain demographic and linguistic vulnerability. (urban dwellers) do not feel the same deficit of contacts and communication. A practical way of removing some of the fears among the Abkhaz would be to introduce the Abkhaz language into all areas of life, however difficult this task may seem today. In order to deal with the concerns of other ethnic groups it is important

© Ibragim Chkadua

12 • Conciliation Resources Dialogue and Diversity in Abkhazia: Public opinion survey – Summary of results • 13 to get the whole of society on board in tackling respondents suggested setting up schools with this issue. Citizens need to assume their place as an ethno-cultural component, instead of national subjects and not mere recipients of government schools, where the teaching would be conducted directives. Abkhaz language acquisition must in Russian and Abkhaz, with additional minority become a national objective that unites society language and literature lessons. If the government rather than divides it. We need a whole package of embarks on such reforms, it would need to first measures and a carefully considered action plan. hold wide public consultations; otherwise any such It is wrong when the importance and prestige of action will be seen as a violation of minorities’ the state language are undermined because of a cultural rights. lack of serious government schemes or hasty and Almost all the respondents noted the low level unrealistic solutions. of political culture in society that creates fertile ground for manipulation of public opinion by Abkhaz language acquisition must populist politicians. Ethnic minorities often become become a national objective that hostages in the standoff between the main political forces mostly represented by the Abkhaz. On the unites society rather than divides it. one hand, the minorities do not want to fall out with the different political groups within the Abkhazian Another important task is more effective law nation; on the other, they are not likely to be enforcement. It is necessary to combat selectivity in the work of law enforcement agencies, to tackle satisfied with a nominal appearance in the political clan relations and corruption. In the words of one arena. As a consequence, many of them prefer to respondent, “an individual must be protected by law distance themselves from the political processes. and not by their ethnic background.” This does not mean that there are no politicians among representatives of ethnic minorities but that It is essential to raise the level of literacy in they are few and far between. the area of law. During the survey the minority representatives who felt confident (mostly journalists or established professionals in other Ethnic minorities often become areas) spoke about the fact that citizens should be hostages in the standoff between able to defend their rights. “If someone knows the the main political forces mostly law and his or her rights they will not fall victim to extortion.” Civic education for adults and children represented by the Abkhaz. could play an important role. Both adults and children should be familiar with such notions as Civil society activists speak about the undesirability citizenship, respect for human rights and cultural of political association along ethnic lines and call diversity, respect for the state language etc. for uniting on ideological grounds. Strengthening Some respondents suggested that school curricula democratic institutions, developing political parties should include lessons on the history of ethnic and civil society are the preferred ways of ensuring minorities in Abkhazia.5 Programmes containing greater participation of citizens in the social and information about different ethnic cultures, political life of the country. including festivals, exhibitions, and TV broadcasts, Opinions were also divided on the question would contribute to greater mutual understanding. of introducing quotas for ethnic minority The question about the need for so-called representatives in parliament and government. ‘national schools’ caused a lot of debate among Some think that it is necessary to introduce quotas the representatives of different ethnic minorities. as a temporary measure to encourage political Some of the respondents (mostly Armenians and a participation of minorities; others consider quotas few Georgians) think that the teaching of different an anathema to the idea of public participation. In subjects through the medium of national languages either case, it is necessary to think of measures (Armenian or Georgian) results in the pupils’ poor that would encourage the more professional and command of Russian and zero command of Abkhaz. educated part of society, irrespective of ethnic This limits their opportunities for continuing background, to consider a career in government. their education in Abkhazia and Russia. Some The development of political parties and the introduction of a mixed electoral system would aid 5 One ethnic Armenian respondent suggested that episodes of history that strengthened good relations between different ethnic that process. groups (for example, the welcome shown by the Abkhaz to the Armenians fleeing Turkey at the end of the 19th century) should Many spoke of the need to set up community get special coverage. boards for ethnic minorities under the auspices of

Dialogue and Diversity in Abkhazia: Public opinion survey – Summary of results • 13 different official institutions (such as parliament or their more effective integration into a common the Cabinet). They could serve as communication Abkhazian space. channels and provide feedback as well as develop The media could play a special role in promoting recommendations and strategies on managing minority policies. Currently they barely reflect the cultural diversity. The participants mentioned the lives and problems of ethnic minorities in Abkhazia. Public Chamber, which could play a positive role by On the other hand, the most widely available broadening the representation of ethnic minorities resource, state television, is not accessible to and becoming a platform for dialogue, for which, the majority of citizens because of the language according to many respondents, there is a real barrier. At the same time the respondents need. It is also important to pay greater attention emphasized that they would like to know what is to a broader participation of ethnic minorities in the being discussed on Abkhazian TV channels, to get work of local government. a better understanding of the social and political Without economic development and job creation, issues in Abkhazia, to be familiar with the Abkhazian social problems are going to get worse. In situations culture and so on. The introduction of subtitles for of economic stagnation and unemployment, social programmes in the Abkhaz language could play a problems are often perceived through the prism positive role. Their introduction would indicate a of ethnicity. It is important to support economic readiness to create a shared Abkhazian information activity between different districts, because it will and cultural space. bring different ethnic groups together and enable

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