GEORGIAN FOREIGN POLICY THE QUEST FOR SUSTAINABLE SECURITY Edited by Kornely Kakachia and Michael Cecire Konrad-Adenauer-Stiftung (KAS) is a political foundation of the Federal Republic of Germany. Democracy, peace and justice are the basic principles underlying the activities of KAS at home as well as abroad. The Foundation’s Regional Program South Caucasus conducts projects aiming at: Strengthening democratization processes, Promoting politi- cal participation of the people, Supporting social justice and sustainable economic devel- opment, Promoting peaceful conflict resolution, Supporting the region’s rapprochement with European structures. The Georgian Institute of Politics (GIP) is a Tbilisi-based non-profit, non-partisan, research and analysis organization founded in early 2011. GIP strives to strengthen the organizational backbone of democratic institutions and promote good governance and development through policy research and advocacy in Georgia. It also encourages public participation in civil society-building and developing democratic processes. All rights reserved. Printed in Georgia. Konrad-Adenauer-Stiftung Regional Program South Caucasus Akhvlediani Aghmarti 9a 0103 Tbilisi, Georgia www.kas.de/kaukasus Disclaimer The papers in this volume reflect the personal opinions of the authors and not those of the Konrad Adenauer Foundation or any other organizations, including the organizations with which the authors are affiliated. ISBN 978-9941-0-6263-6 © Konrad-Adenauer-Stiftung e.V 2013 Contents Foreword by Irakli Alasania ........................................................ 7 Introduction ............................................................................. 9 The Interregnum: Georgian Foreign Policy from Independence to the Rose Revolution By Stephen Jones and Levan Kakhishvili ....................................... 13 European, Asian, or Eurasian?: Georgian Identity and the Struggle for Euro-Atlantic Integration By Kornely Kakachia .................................................................. 41 EU-Georgia Relations: Where it Starts and Where it Goes By Ivane Chkhikvadze ................................................................ 53 Security and Symbolism: Georgia’s NATO Aspirations in Perspective By Michael Hikari Cecire ............................................................. 65 The Reluctant Patron: Georgia-U.S. Relations By S. Neil MacFarlane ................................................................. 79 Divergent Interests: What Can and Cannot be Achieved in Georgia-Russian Relations By Ghia Nodia ........................................................................... 97 The Merchant Hegemon: Georgia’s Role in Turkey’s Caucasus System By Michael Hikari Cecire ............................................................. 111 The Lost Empire: Iran’s Cautious Return to Georgia By Kornely Kakachia .................................................................. 125 Two Canaries, Two Coal Mines: The Mirror Symbolism of Georgia and Ukraine By Hanna Shelest ...................................................................... 137 An Alliance Built on Understanding: The Geopolitics of Georgian-Azerbaijani Relations By Zaur Shiriyev ....................................................................... 149 Uncertain Old Friends: Georgian-Armenian Relations By Robert Nalbandov ................................................................. 175 From Blind Love to Strategic Alliance? Baltic-Georgian Relations Revisited By Kornely Kakachia and Renata Skardziute-Kereselidze ................. 191 The Scars of Separatism: The Impact of Internal Conflicts on Georgian oreignF Policy By Mamuka Tsereteli .................................................................. 205 Author Biographies ...................................................................... 215 Foreword There are few words that are so commonly associated with Georgia as “crossroads,” which is understandable considering my country’s geog- raphy, culture, history, and political aspirations. But for the first time in recent memory, my country has picked a road in the fork. Since the elections in 2012 and 2013, the Georgian government has re-commit- ted itself to democracy and strongly reaffirmed its Westward course. Our gradual political development has not come without its costs, and much that is necessary and urgent remains to be done. But as Georgians cautiously steps out from the crossroads, the way my country sees itself, its neighbors, and the world will be of cru- cial importance. Almost equally significant is for our partners in the West to consider and appreciate the inherent multi-dimensionality of Georgian foreign policy. At the meeting point of powerful countries and resource-rich regions, an adaptive and reality-oriented Georgian foreign policy is not only desirable but a strategic necessity. We em- brace and cherish our European identity, but neither can we ignore the realities of geography and geopolitics. This book from the Georgian Institute of Politics and the Konrad Adenauer Foundation examines some of Georgia’s most important foreign policy issues and partnerships. While the expert authors may not all agree on the particulars of certain issues, the book presents a consensus view that strongly favors Georgia’s integration within Euro-Atlantic structures. Outside of this core foreign policy objective, the foreign policy picture becomes more nuanced. Recent institutional political progress should not obscure the fact that Georgia lives in an uneven and sometimes perilous neighborhood. Ties with Moscow, de- spite recent thaws, remain tense and understandably viewed through the lens of war and the Russian occupation of Georgian territory. To our south, meanwhile, Georgia’s ties with Turkey, the region’s other great power, are exemplary and accelerating as our interests increas- ingly intertwine. This is no less true of Azerbaijan as well. Georgia does not have the luxury of taking our peace, security, or sovereignty for granted. In spite of our overriding Euro-Atlantic aspi- 7 rations, must be prepared to communicate and cultivate serviceable relations with all of our neighbors. If we are to do more than survive as a state, Georgia’s Euro-Atlantic aspirations must be accompanied by effective international relations that understand and properly en- gage our diverse and sometimes tumultuous region. Countries like Iran, though isolated internationally, cannot be ignored by Georgia. And Armenia, though a close ally of Russia, can still be a friend and partner. Ultimately, Georgia’s long-term accession and integration with the Euro-Atlantic space depends not on enthusiastic rhetoric, but in the consistent conduct of responsible statecraft. More than anything else, our Western partners should be able to trust in Georgia’s ability to manage its affairs with care and deliberation while staying true to the liberal democratic values our leaders have so often espoused. This book is an important part of that process. Not only do the con- tributors offer an array of interesting and important perspectives on Georgian foreign policy, but they do so in a way to make these issues accessible to our partners in the West and beyond. Irakli Alasania Minister of Defense of Georgia November 2013 8 Introduction When Georgia joined the international community of independent countries in December 1991, this small and weak country was al- ready being torn apart by ethnic conflicts and civil war. For most of observers of post-Soviet politics, Georgia constituted an illuminating example of the destructive force of nationalism. In many ways, Geor- gia was illustrative of a fragmented society and failing state. Georgia struggled to find peace at home and shape its relationship towards the world. In the years since, we have witnessed a deep-rooted political and eco- nomic transformation in Georgia and its adjacent regions. In terms of foreign and security policies, the country has chosen a clear direc- tion towards integration with Euro-Atlantic structures. However, chal- lenges remain. Georgia’s ethnic conflicts remain largely unresolved and Russia is still a significant impediment to the country’s European and Euro-Atlantic aspirations, as confirmed by the Russian-Georgian war of 2008. At the same time, considerable achievements on the way of modernization and democratization have made it possible for Georgia to exercise a more independent foreign policy and establish itself as an important regional player and contributor to international security. Georgia—having recently completed its first peaceful change of government—has the potential to become an attractive model for development in the region, which is of genuine strategic importance to Europe. Further, Georgia has contributed to international peace operations in Kosovo and Afghanistan and expressed its readiness to support other NATO and E.U.-led missions in the future. This volume is part of Konrad Adenauer Stiftung’s mission to promote greater understanding, dialogue, and cooperation between nations, countries, and religions. In Georgia and the South Caucasus, one of the primary goals of the foundation is to support the region’s rap- prochement with European structures and values, an objective which is shared by the Tbilisi-based Georgian Institute of Politics. The book contains various articles elaborating the directions, dilemmas, and 9 opportunities of Georgia’s foreign relations. In cooperation with the Georgian Institute of Politics, we expect this volume to contribute