The North Caucasus Factor in the Georgian-Abkhaz Conflict Context
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THE NORTH CAUCASUS FActOR IN THE GEORGIAN-ABKHAZ CONFLIct CONTEXT July 2012 Understanding conflict. Building peace. About International Alert International Alert is a 26-year old independent peacebuilding organisation. We work with people who are directly affected by violent conflict to improve their prospects of peace. And we seek to influence the policies and ways of working of governments, international organisations like the UN and multinational companies, to reduce conflict risk and increase the prospects of peace. We work in Africa, several parts of Asia, the South Caucasus, the Middle East and Latin America and have recently started work in the UK. Our policy work focuses on several key themes that influence prospects for peace and security – the economy, climate change, gender, the role of international institutions, the impact of development aid, and the effect of good and bad governance. We are one of the world’s leading peacebuilding NGOs with more than 159 staff based in London and 14 field offices. To learn more about how and where we work, visit www.international-alert.org. The publication has been made possible with the help of the UK Conflict Pool. Its contents are the sole responsibility of International Alert and can in no way be regarded as reflecting the point of view of the UK government. © International Alert 2012 All rights reserved. No part of this publication may be reproduced, stored in a retrieval system or transmitted in any form or by any means, electronic, mechanical, photocopying, recording or otherwise, without full attribution. Layout by D. R. ink Front cover image: © International Alert The North Caucasus factor in the Georgian-Abkhaz conflict context 2 International Alert Table of contents Acronyms 3 Preface from International Alert 4 Abkhaz perspective - summary 5 Georgian perspective - summary 15 PART 1 The Abkhaz perspective 23 The North Caucasus factor in the Abkhaz-Georgian armed conflict of 1992-1993 24 NATELLA AKABA The Circassian question and Abkhazia: historical factors and contemporary challenges 31 ARDA INAL-IPA The North Caucasus in contemporary Georgian politics 39 SPARTAK ZHIDKOV PART 2 The Georgian perspective 48 Historical aspects of the North Caucasus factor in relation to modern Georgia (up to 2008) 49 GEORGE ANCHABADZE The North Caucasus: political and social trends and their significance for Georgia 60 GEORGE GVIMRADZE The North Caucasus in the 2008 Russia-Georgia war 70 ARCHIL GEGESHIDZE Georgia’s North Caucasus policy in the context of the post-August “new realities” 77 IVLIAN HAINDRAVA The North Caucasus factor in the Georgian-Abkhaz conflict context 3 Acronyms ASSR Autonomous Soviet Socialist Republic CIS Commonwealth of Independent States EU European Union GDP Gross Domestic Product GRU Main Intelligence Directorate (of the General Staff of the Armed Forces of the Russian Federation) KGNK Confederation of Mountain Peoples of the Caucasus NATO North Atlantic Treaty Organization NCFT North-Caucasus Federal Territory NCMD North Caucasus Military District NKVD People’s Commissariat for Internal Affairs PACE Parliamentary Assembly of the Council of Europe PIK “First Information Caucasus” TV channel RSFSR Russian Soviet Federative Socialist Republic SSR Soviet Socialist Republic UN United Nations UNA-UNSO Ukrainian National Assembly–Ukrainian National Self Defence USSR Union of Soviet Socialist Republics Note on spelling: Geographic denominations are always a contentious issue in the Georgian-Abkhaz context. In this publication, the preferred spelling of the individual authors has been retained. 4 International Alert Preface from International Alert International Alert is proud to present the latest in the “Dialogue through Research” process, produced by a group of experts from both sides of the Georgian-Abkhaz conflict divide, on the theme of the North Caucasus Factor in the Georgian-Abkhaz conflict. The experts – prominent public figures who play a role in shaping public debate in their respective societies – selected this topic as one having particular relevance for a number of reasons, a few of which we highlight below. The role of Russia in the conflict is perceived by Georgian and Abkhaz societies each through the prism of the history of Russia’s involvement in the conflict, and Russia’s image in both Georgian and Abkhaz internal discourse is quite contradictory. This in itself is an obstacle to building understanding between the sides of the different public discourses. However, when assessing Russia’s role, the sides do not always take into full consideration Russia’s relations with the North Caucasus and related tendencies, both with respect to internal and external Russian processes, inter alia the South Caucasus. Clearly, official policy analysis and prognoses on the conflicts – in this case the Georgian-Abkhaz conflict – do not fully take into consideration Caucasian commonalities, which many people living in the Caucasus identify with. At the same time, we can see how, for example, after the 2008 war Georgia stepped up efforts to establish links with the people of the North Caucasus. The aim here was to draw them into mutually beneficial partner relations, based on Georgia’s own vision of partnership and interests. However, socio-political trends in the North Caucasus are mostly hidden from the outside world for reasons of lack of free access and the close-knit nature of the traditional communities living there. Therefore, we invited new experts into the Georgian-Abkhaz dialogue group who could expand our understanding of this issue. We hope that this publication will stimulate public debates on the North Caucasus factor in Georgian and Abkhaz societies. This could help to improve understanding of the role this region plays, where internal Russian and South Caucasian interests are intertwined. The North Caucasus factor in the Georgian-Abkhaz conflict context 5 Abkhaz perspective - summary Introduction The policy of perestroika in the 1980s and the subsequent collapse of the Soviet Union acted as an impetus to ethnic nationalist movements in the North Caucasus and the resurgence of dormant ethnic conflicts. Since the mid-1990s, these conflicts have led to all-out ethnic or nationalist violence in the North-East of the Caucasus (the Chechen War, the Ossetian-Ingush conflict). Since 2000, hotbeds of instability have also begun to emerge in the North-West of the Caucasus (Kabardino-Balkaria, Karachaevo-Cherkessia). While ethnic/nationalist movements in Chechnya, Ingushetia and Dagestan have over the past decade been transformed for a variety of reasons almost entirely into Islamicist mobilisation, in Kabardino-Balkaria and Karachaevo-Cherkessia the two types of mobilisation – Islamic and ethnic nationalist – co-exist. These processes in the North Caucasus have both a local and a regional or geopolitical dimension onto which both types of mobilisation are grafted. Both Islamicist and ethnic nationalist projects are also attracting the attention of other players keen to promote their own interests; indeed, to some extent, they are nurtured by these interests. These complex multi-actor, multi-level relationships combine to create serious challenges for stability not only for the Russian part of the Caucasus, but also for the countries of the South Caucasus and even outside the region. In this collection of articles, the authors provide an analysis of the factors influencing the situation in the North Caucasus (mainly the North-Western Caucasus), the North Caucasus factor in the 1992–1993 Georgian-Abkhaz war (Natella Akaba), the evolution and characteristics of Abkhaz- Adyghe relations as well as new trends in light of “the Circassian question” and the potential for positive change (Arda Inal-Ipa), and Georgia’s policy on the North Caucasus (Spartak Zhidkov). Before this, however, it is important to put the articles into context with an overview of the geopolitical and strategic significance of the region. The geopolitical (international) dimension of the processes in the North Caucasus The geopolitical position and strategic significance of the North Caucasus (and indeed the Caucasus as a whole) is one factor of global policy that has remained a constant for at least two centuries. This was traditionally a tussle for influence between three empires – Russian, British and Ottoman – which impacted on the lives, political aspirations and fate of the peoples populating the region. Today, as over the last two decades, the North Caucasus is intersected by the competing interests of the great powers and regional players. If we add the local and Federation-level elites, civil society organisations and movements, criminal groups and the terrorist underground, the picture becomes even more complex and ambivalent. In the North Caucasus, we are also seeing a clash between pro-fundamentalism and pro-government strands of Islam, radical and moderate, which follow the fault lines of political and ethnic nationalist divisions. Against the background of the international anti-terrorist agenda, religious insurgency in the North Caucasus is turning the region into a Western and not simply a Russian frontier. The increase in radical Islamicist forces in the region is opening doors for interaction between Russia and the West on a range of issues of common interest. But attempts by the two powers to present 6 International Alert a united front against the Islamicist threat are undermined by differing views on the various “ethnic nationalisms” in the North Caucasus. These views are