The Russian Policy and the Intensification of Civil Wars in Georgia, Tajikistan and Moldova Alexander Benifand

There are more than two million refu­ Russia's glory. The idea of a great Rus­ of minority rights of Russians on the ne­ gees in Russia, most of whom are in sian empire holds strong appeal for the, gotiation table with other CIS and Baltic Moscow, St. Petersburg, the Krasnodar, masses. The emerging nationalist ideol­ states. More importantly, the Russian Stavropol and Rostov regions. Even in ogy produces xenophobia inside Russia government wishes to maintain its ever­ the Siberian Altai region there are about andasenseofsolidaritywithtwenty-five presentinfluence throughoutthe former 20,000 refugees roaming the Kulunda millionRussians livingoutside Russia in Soviet Union. steppeinsearchofhelp. Theyhave come theformerSovietrepublics. Thisconcern Russia moves very slowly towards from Central Asia, Transcaucasia, about the violation of rights of Russian the withdrawal of its troops from the Tatarstan, Tula, Buryatia, Bashkiria and minorities inthe Baltics and other newly Baltic, Moldovaandotherregions. Italso Yakutia. About 90 percent are Russians formed states is shared by those in the interferes in internaI affairs of the CIS and the others are Germans, Ossetians, democratic movement. What distin­ states by sending troops to contain the Kazakhs and Moldovans. guishes the nationalists is that they also conflicts and protect the rights of the Inthevastterritoryofwhatusedtobe view Russian ethnic minorities as the Russian minorities. One example is the the SovietUnionanditssatellites, thereis "fifthcolumn" intheir struggle to restore Russian policy in Abkhazia (Georgia), clearpotentialfor manyYugoslavia-type the Russian empire. . Moldova and Tajikistan. . civil wars. Many of these countries share Furthermore, some argue that the the preconditions for armed conflict: the entire landscape of the former U.S.S.R. is ABKHAZIA coliapse of strong central authority, eco­ of vital geopolitical interest to Russia.2 The' armed confrontation between nomic crises, persistent violations of mi­ YevgenyAmbartsumov,chairmanofthe Abkhaz and Georgian forces began be­ nority rights, border disputes and very Supreme Soviet's Joint Committee on fore the dissolution of the U.S.S.R. Politi­ limited experience with democracy. International Affairs and Foreign cal turmoil started when Abkhazia, A profound economic crisis plays a which used to be a part of the Georgian significant role in intensifying social and Soviet Socialist republic, declared inde­ ethnicconflicts. InthefiJ;st quarterof1992 In the vast territory ofwhat pendence. After the formation of the alone, the Russian economy declined by used to he the Soviet Union Georgian independent state, Abkhazia 14 percent. An opinion poli conducted its continuedits struggle for independence. by a sociologist, Boris Grushin, in the and satellites, there is However, the heterogeneous ethnic Russian Federation, produced the fol­ clear potentialfor many composition of the region complicates lowing results: 80 percent of the people Yugoslavia-type civil wars. matters. There are 90,000 Muslim felt that life was better before perestroika Abkhazianslivingamong500,000 Chris­ than now; 67 percent of the respondents tian Georgians, Russians and Armeni­ favoured socialism; and50 percentofthe Economic Relations, has made the fol­ ans in Abkhazia. They constitute only 17 respondents (predominantly older peo­ lowing recommendations on Russian percent of the region's population. The pie) have favourable thoughtsaboutSta­ foreign policy: "As the internationally remainder are 46 percent Georgians, 15 lin. 1 Under these conditions, patriotic recognized legal successor to the percent Russians and 15 percent Arme­ and nationalist forces are gaining more U.S.S.R., the Russian Federation should nians.4 influence and popular support. Because base its foreign policy on a doctrine de­ Originallytwo partieswere involved the economic reforms have failed to claringtheentiregeopoliticalspace ofthe in the conflict: the Abkhaz and the Geor­ bring prosperity and stabilize the Rus­ former Union to be the sphere of its vital gian National Guards. In addition, the sian economy, many active members of interests ... and should strive to achieve Abkhazian struggle attracts volunteers the democratic movement are looking understandingandrecognition from the from the mountain peoples of Northern for answers among the conservatives world community of its special interests Caucasus,whichis presentlypartofRus­ and nationalists. in this space."3 sia.5 The confederationofmountainpeo­ Ultranationalist forces attack y eltsin is walking on quicksand. His ple issued an ultimatum to Georgia to Yeltsin's reforms. They hope to restore political rating has dropped signifi­ withdraw its trqops from Abkhazia and cantly. To stay in power he is moving pay compensation for the damage it more and more towards conservative caused. If Georgia did not comply, the Alexander Benifand is avisiting research fellow at forces. He is hoping to raise his popular­ confederation threatened to declare the the Centre for Research Studies. ity by placing the issue of the protection start of hostilities against Georgia.

12 Refuge, Vol. 12, No. 7 (February 1993) Abkhazia has tremendous strategie the situation has become more compli­ OnJune 23, 1990 the Supreme Soviet significance by virtue of its location on cated. It is expectedthatmasses ofpeople of the Moldavian Soviet Socialist Repub­ the Black Sea. Most important ports are willbecome refugees. OnJanuaryS, 1993 lie passed a declaration on sovereignty located there. Furthermore, a major rail­ Edward Shevardnadze asked the UN to and a document denouncing the roadalso crosses theregion. It is nowon­ send a peacekeeping force to Abkhazia. Ribbentrop-Molotov Pact as an act of der that Russia is very interested in its aggression and unlawful occupation of MOLDOVA (TRANS-DNIESTRIA) fate. part of Romania's territory and the Au­ Originally Russian troops arrived in Present ethnic conflicts in Trans­ gust 2, 1940 decision of the U.S.S.R. Su­ Abkhazia byinvitationfrom the Abkhaz Dniestria have long historic roots. When preme Soviet to establish the M.S.S.R. Parliament, which argued that Russia Stalin mastermindedthe U.S.S.R., he put Moscow was thrown into commotion. could not remainindifferent to the situa­ delayed-action bombs against the struc­ The office of Anatoly Lukyanov (a tion in Abkhazia as some 90,000 Rus­ ture, i.e., conflicts in border regions. former Parliament speaker and one of sianslivethere. The Abkhazwerehoping Trans-Dniestria is one of such places. In the organizers of the August 19 coup) thatRussia wouldbeabletoprotect them the twentieth century, the area fre­ started negotiating with representatives from Georgia's control. This invitation quently changed its masters. At first, the of the Russian and Gagauz population, played into the hands of Russian nation­ zonewaspartofthe Kherson Region and stirring their separatist feelings and en­ alists and those wishing to protect Rus­ then the Odessa Region (presently in couraging them to create two independ­ sia'seconomicintereststhere. Theideaof Ukraine). DuringtheCivilWar(1919-21) ent republics-Trans-Dniestria and sending troops to Abkhazia was sup­ it was successively occupied by Ger­ Gagauzia.7 On September 2, 1990 depu­ ported by the Russian Parliament. Rus­ mans, Denikin's troops, French, Roma­ ties at allieveis from the Left Bank dis­ sian President Boris Yeltsin told the nians and finally by the Red Army. tricts of Moldova proclaimed the Russian Supreme Soviet that Russia Afterwards, the Tiraspol area was incor­ establishment of a Trans-Dniestria would not stand by while Russian citi­ porated into the Odessa Region. Then it Moldavian AutonomousSoviet Socialist zens' interests were being trampled on, nor would Russian troops hesitate to Abkhazia has tremendous strategie signijicance by virtue ofils defend themselves if attacked. Political observers say the Abkhaz conflict is be­ location on the Black Sea. Most importantports are located ing used by Yeltsin's hard-liner oppo­ there. Furthermore, a major railroad also crosses the region. It is nents in Parliament as a test of the no wonder that Russia is very interested in ils fate. president's devotion to important national causes. Even though Yeltsin claims that the became the Moldavian Autonomous Republic as part of Moldova, but with a Russian forces would maintain neutral­ Soviet Socialist Republic and eventually firm intention to remain part of the ity, the Georgian State Council Chair­ the Moldavian Soviet Socialistic Repub­ U.S.S.R. man Eduard Shevardnadze accused lie. In 1941-44 the territory was occupied The first sessions of Moldova's Par­ Russian troops of transferring military by Romania, and was included after­ liament, electedinFebruary-March1990, technologyto the Abkhazforces andcre­ wards into the Moldavian Autonomous was marked by the triumph of the na­ ating obstacles to Georgian forces. Rus­ Republic again. However, local people tionalist idea. At the Congress of the sian troops are blocking the airspace of wereneveronceaskedtheiropinion. The PopularFront ofMoldova (PFM), heldin Georgia inthe Abkhazianregion and sea change-overwas forced upon themeach late June 1990, a resolution was passed, approaches. The Georgian foreign min­ time. As a result, local people of aIl ethnic which recommended that Parliament ister said, "This is a clear demonstration backgrounds began to hate aIl forced rename the Moldavian Soviet Socialist of the violation of the norms of interna­ changes. Republic into the Romanian Republic of tionallaw, and crude trampling on the The independent Moldova is seeking Moldova. The horror of unification was sovereignty of Georgia." its identity as a European nation, per­ widespread in Trans-Dniestria. On Au­ Yeltsin's policy is criticized both in­ hapsas partof Romania, intowhichsorne gust 25, 1991 the Supreme Soviet in side Russia and abroad. One political hope to become incorporated in the fu­ Tiraspol (Trans-Dniestria) proclaimed observer said, "It would be ironic if the ture. But this means that residents of the the independence of the Left Bank. On great defender of freedom and democ­ strip oflandalongthe Dniestria are again September 6 a resolution was passed on racy was forced to enter an essentially going to be included into the Balkan sys­ the transfer of everything-from enter­ imperialist Soviet-style war."6 tem. The Russians, who comprise a sig­ prises to the KGB-tothe"youngrepub­ Even before the Russian troops were nificant part of the 800,000 people in this lie's" jurisdiction. During this time no sent to the region, the armed confronta­ area, donotlookfavourablyat this devel­ one onthe Left Bankwaswillingto nego­ tion in Abkhazia has claimed hundreds opment. Their demands for autonomy tiate a new state set-up of the Republic of of lives. Thousands of people have been and independence from Moldova is Moldova. Moldova did not try to follow uprooted. Withthe Russiantroopsthere, fuelled by Moscow.

Refuge, Vol. 12, No. 7 (February 1993) 13 the route of political negotiation and set up a satellite onthe territoryto which tive, but also because this strategically used the diplomacy of guns. it has no claim, since Trans-Dniestria is important region, rich in natural re­ On June 19-21, 1992 the city of located between Moldova and Ukraine. sources, particularly uranium, has be­ Bendery was heavily shelled. The The artificiality of this territorial creation come an object of external pressure by Bendery slaughter claimed 620 lives and has a potential for intensifying serious various groups of the Mojahedin, Irani­ left 3,500 wounded. Thousands of refu­ ethnic, territorialandpoliticalconflictsin ans, Turks and Uzbeks. This pressure gees from this region fled <'0 Russia, the future. intensified the disintegration of Tajik so­ UkraineandotherpartsofMoldova. This ciety in political and regional terms. The CENTRAL ASIA massacreleftaverybitterafter-taste. Fed­ northem part of Tajikistan is drawn to­ eration with Moldova is completely out The uprooting of people in Tajikistan is wards Uzbekistan, while the southem of the question. At the same time, the causedbyanarmedconflictbetweentwo region is immersed in a dvil war that is Russian presence in the region is ever­ political forces. On the one side there are becoming part of Afghan feuding. Rus­ growing. The 14thArmy(whichis under supporters of the former president sia cannot stand aloof in the Tajik con­ the Russian jurisdiction) is permanently Rakhmon Nabiev, supported by the flict, which threatens 600,000 Russians stationed there under the command of Communist forces, whose leaders tradi­ living in the republic and jeopardizes Alexander Lebed, a former deputy com- tionally came from the economically de- Russia's interests. Therefore, there is a strong Russian military presence there. Sorne Russian politicalanalysts, such ... the war in Tajikistan ... will reach beyond the boundaries of as Vladimir Kulistikov, believe that the Tajikistan because ofethnie kinships, the weakness ofstatehood war in Tajikistan may have wider re­ gional implications. This war will reach and the absence ofhorders. beyond the boundaries of Tajikistan be­ cause of ethnickinships, the weakness of mander of the Air Force of Russia. Athis veloped northern part of the country stat~hood and the absence of borders. first press conference, Lebed firmly where Islamic influence is relatively Especially dangerous is a possible disin­ stated that Trans-Dniestria is Russian weak. His opposition, which seized tegration of Kazakhstan, whose popula­ land. At the beginning of October, the power from him in May 1992, is a weak tion is mostly Russian. This in tum will "Dniestria republic" leaders in eastem coalition of prodemocracy and Islamic endanger stability in Russia itself.12 Moldova celebrated the bicentennial of forces from the economically depressed There are different interpretations of the the founding of Tiraspol as a would-be south, where Communism did not take role of the Russian troops on the territo­ capital of a military settlement of the root. 1ü ries of Abkhazia, Moldova and Russian empire. The first six monthsofthe warcaused Tajikistan. Sorne feel that they play the Trans-Dniestria intends to form its 20,000 casualties.l1 It also produced a role of a mediator and a peacekeeping own army with the help of the 14th massive displacement of people. Refu­ force .13 It is mycontention, however, that Army. Ministries of defence andnational gees escaping the fighting in southern to be a peacekeepingforce, itwouldhave security have already been established. Tajikistan have fled into Dushanbe, the to includeforces of severalCIS members. The Dniestria leaders passed an edict, capital of Tajikistan. Thousands of refu­ Yet at the present, it is comprised only of imposing the Russian alphabet instead gees from Kurgan-Tyube, the opposition Russian troops, whicharbitrarilyassume of the Latin alphabet on the Moldovan stronghold, have picketed the Russian the role of peacekeepers, often without language of the region. Russian ultrana­ ambassador's.residence demanding an an invitation and in spite of demands for tionalist supporters of the "Dniestria re­ endto Russian interference inTajikistan. their withdrawal. Their presence con­ public" hail the progress of "this first According to the ITAR-TASS report of tributes to the escalation of the conflict republic free of democrats." The Council December 31, there were 537,000 refu­ and not its resolution, and will cause of Atamans of Russian Cossack Hosts, gees officially registered in Tajikistan more bloodshed and displacement. lEl which convened in Tiraspol, asked and around 70,000 who fled to Afghani­ Yeltsin to recognize the "Dniestria re­ stan (Radio Free Europe, January 4, NOTES public" and give it assistance, including 1993). This was a reaction to rumours military.8 The Abkhazian and that the Russian forces have givenweap­ 1. Radio Free Europe Daily Report No. 185, "Dniestria" authorities have signed an onry and equipment to supporters of September 25, 1992. alliance agreement.9 deposed president Rachmon Nabiev. 2. A. Mygranyan, "Real and Illusory By maintaining its army on the terri­ Leaders of the opposingsides in the civil Guidelines in Foreign Policy," tory of Trans-Dniestria, setting up insti­ war say they have no control over 20 Rossiiskaya Gazeta (August 4, 1992): 7. tutions (such as banks and security) percent of their forces. AndranikMygranyan is a director of the CIS Centre of the Russian Academy of directly linked to those in Russia, and The situation is analogous to Af­ Sciences' Institute of International Eco­ lending moral and material support to ghanistan not only because the latter is nomie and Political Research. the Trans-Dniestria govemment, Russia ~ajikistan' sneighbourandits ethnicrela-

14 Refuge, Vol. 12, No. 7 (February 1993) 3. Konstantin Eggert, "Russia in the IOle of 'Eurasian gendarme'?" Izvestia (August 7,1992): 6. 'RESEARCH FELLOWSHIP AND AWARDS 4. "Georgia Hits Coastal Town on Black Sea," The New Times (October 4, 1992). 5. The mountain peoples ofNorthem Cau­ Centre for Refugee Studies casus, including Chechnya, Ingushetia, Kabardino-Balkaria, Northem Ossetia York University andDagestan, have formed a federation. They demand a formation of a mostly A. KATHLEEN PTOLEMY RESEARCH FELLOWSHIP Muslim confederation of independent states and the withdrawal of Russian An annual Cano $15,000 Kathleen Ptolemy Research Fellowship has been set troops from their territory. Abkhazia as­ up to permit avisiting scholar from adeveloping country to undertake research pires to be a partof this confederation. In on refugees. Scholars interested in the study ofrefugee women who are in need addition to sending volunteers to of protection, and demonstrate commitment to refugee rights advocacy or Abkhazia, the mountain people of Northem Caucasus have sent aid. service to the disfranchised will be given priority. 6. Olivia Ward "Shevardnadze, Yeltsin B. ANNUAL RESEARCH AWARDS Caught in Escalating Caucasus Fight," The goal ofthese research awards is to provide funding to anumber ofgraduate The Toronto Star (October 4,1992). students while they undertake research projects under the auspices ofthe Centre 7. Igor Gamaunov, "Krovavya zgatva Anatolya Lukyanova," Novoe Russkoe for Refugee Studies. Eligible students are/will be registered full time in a Slovo (August 18, 1992). graduate program at York University and who plan to do research in refugee 8. Oazu Nantoi, "On Moldova and Not It and migration studies. International students are eligible to apply. Alone," Moscow News Weekly (Novem­ ber 29, 1992)j Valery Litskaya, "Conquer VALUE OF AWARDS orKiil," MoscowNewsWeekly(November i. Naomi Harder Refugee Award . Cano $15,000 29, 1992)j Alexander Kakotkin, "War The Naomi HarderAward may not be held in conjunction with an external with No Special Cause," Moscow News scholarship or any other teaching or research assistantship. Weekly (November 27,1992); "Russia be­ tween Dniestria's Two Banks," Moscow ii. General Refugee Awards . 5 awards of Can. $9,000 News Weekly (November 27, 1992); The General RefugeeAwards may be held in conjunction with an external Ksenia Myalo, "Pridniestrovie: Vesna scholarship, but may not be held in conjunction with any other teaching Tsveta Khaki," Novoe Vremya (Novem­ or research assistantship. ber 16,1992). Candidates should submit acurriculum vitae (resumé), academic records, two 9. The Georgian and Moldovan foreign letters of reference and a sample of research or publications to the Centre for ministries said that the Abkhazia­ "Dniestria" alliance treaty just signed in Refugee Studies, tog witha statement of intent by March 15, 1993. Tiraspol promotes armed conflict, seeks to consolidate unlawful power struc­ VISITING SCHOLARS tures within states, and violates national andintemationallaw as weil as the spirit Visiting scholars ma ties at the Centre for Refugee Studies for and goals of the UN and the CSCE. The short-term or long-t hort-t projects are those that can be precedent being set is potentiaily dan­ completed within a few months. will provide visiting scholars gerous to the intemational system as a with office space and a r. Long- research projects are for the whole, the statements said (Radio Free ten from September to April and are Europe Daily Report, no. 21, February 2, duration ofthe acade 1993). also eligible for fun 10. Yuri Zarakhovich, "War in a Vacuum," Please submit you Time (October 12, 1992). 11. JohnGray, "Anarchy Sweeps Tajik Capi­ tal," The GlobeandMail (October26, 1992). 12. Vladimir Kulistikov, "Afghanistan Has CaughtUp withRussia, But This Time in Tajikistan," New Times, no. 37 (Novem­ ber 1992). 13. Sophie Pons, "Russia Becomes Police­ man and Mediator for crs Nations," We 1, no. 15 (October 5-18,1992).

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