Protracted Conflicts in the OSCE Area OSCE Network of Think Tanks and Academic Institutions Protracted Conflicts in the OSCE Area Innovative Approaches for Co-operation in the Conflict Zones OSCE Network of Think Tanks and Academic Institutions Working Group | Philip Remler (Principal Drafter) | Atanas Dimitrov | Samuel Goda | Konstanze Jüngling | Nino Kemoklidze | Bidzina Lebanidze | Ida Manton | Sergey Rastoltsev | Sebastian Relitz | Raymond Saner | Hans-Joachim Schmidt | Tanja Tamminen | Oleksandr Tytarchuk | Tony van der Togt | Stefan Wolff | Wolfgang Zellner This work is subject to copyright. All rights are reserved, whether the whole or part of the material is concerned, specifically those of translation, reprinting, re-use of illustrations, broadcasting, reproduction by photocopying machine or similar means, and storage in data banks. Under § 54 of the German Copyright Law, where copies are made for other than private use, a fee is payable to »Verwertungsgesellschaft Wort«, Munich. Design and typesetting | red hot 'n' cool, Vienna Cover Photo © Philip Remler 2 Table of Contents 2 Executive Summary 6 Maps 9 1. Introduction 9 Purpose of the Project 10 Introduction to the Conflicts 15 2. Security 15 2.1 Security Aspects of the Conflicts 17 2.2 Confidence- and Security-Building Measures in the Context of the Conflicts 20 2.3 Approaches to Take 23 3. Economics 23 3.1 Economic Aspects of the Conflicts 24 3.2 The Strengths and Limitations of Trade 25 3.3 The Strengths and Limitations of Economic Assistance 27 3.4 The Strengths and Limitations of Capital Infrastructure Co-operation 30 3.5 Approaches to Take 30 3.5.1 Trade 30 3.5.2 Capital Infrastructure 33 4. Human Dimension 33 4.1 Societal Aspects of the Conflicts 34 4.2 Strengths and Limitations of Dialogue 36 4.3 Historical Narrative 37 4.4 Strengths and Limitations of Reconciliation 38 4.5 Approaches to Take 38 4.5.1 Dialogue 38 4.5.2 Historical Narrative 39 4.5.3 Reconciliation 41 5. Conclusions 42 Appendix I: Papers Received 43 Appendix II: Workshop Participants Executive Summary This project aims to provide a menu of innovative • the conflicts are not, in fact, frozen: only the ways in which the international community can peace processes are; and engage with all sides in the four so-called “frozen • the conflicts differ from one another most in conflicts” – protracted conflicts on the territory the relations between the separatists and the of the former USSR that include the Karabakh, metropolitan state from which they are trying to Abkhazia, South Ossetia, and Transdniestria secede. conflicts. The engagement we recommend does not impinge upon the existing participation of the The last of these characteristics helps us understand international community, and in particular the what approaches may be tried in each of the OSCE, in mediation efforts to resolve the conflicts; conflicts. The conflicts form a spectrum that cuts rather, it is available to the entire international across all the OSCE baskets: security, economics and community, not just those countries involved in the human dimension. On one end of the spectrum mediation. The aim of engagement is to improve is the Transdniestria conflict, with calm and steady the prospects for comprehensive resolution of relations between Chişinău and Tiraspol enabling the conflicts by improving security, economic, a relaxed security environment and extensive and social conditions for all populations in the economic and social interchange. At the other end conflict zones. Many efforts at such engagement is the Karabakh conflict, with a permanently tense have been attempted in the generation since the security situation and little or no economic or social conflicts began. In general, all the “low hanging contact. The South Ossetia conflict is somewhat fruit” – engagement that is relatively easy – has been more tense than the Transdniestrian, and the tried. This project of necessity looks beyond the Abkhazia conflict still more tense, but somewhat less relatively easy. so than Karabakh. Though each of the four conflicts is unique, they The project was based on reports drafted by share several basic characteristics: Network institutes. Thesecurity discussions in those papers revolved around confidence- and • they are all separatist conflicts; security-building measures. While most existing • ethnic nationalism played an important role in documents, such as the Vienna Document or the their origins; Treaty on Conventional Armed Forces in Europe, • both ethnic kin and outside patrons have played apply primarily to interstate relations, at least one a major role; OSCE document, the 1993 “Stabilizing Measures • all sides believe their conflict is existential; for Localized Crisis Situations,” foresees CSBMs • all sides have been led to believe that victory between states and non-state actors without without compromise is possible; prejudice to status questions. Existing documents • all sides have adapted to the expectation that the may therefore serve as a menu from which to choose conflicts will not be resolved in the foreseeable measures tailored to the conditions of each conflict. future, and entrenched groups profit politically This was done in 2005 by Brigadier General (Ret.) and economically from the stalemate; Bernard Aussedat (France), who as Senior Military 2 Protracted Conflicts in the OSCE Area Advisor to the OSCE Mission in Moldova worked often degenerated to “ping pong”: back and forth with Russian and Ukrainian colleagues to draw up an statements defending the maximalist official views. ambitious list of CSBMs and arms control measures Opposing historical narratives have underpinned for the Transdniestria conflict. Even in this least the resentments felt between antagonistic sides: tense of the conflicts, that project was not adopted. each side has its own collection of facts, and these Each of the sides in all four conflicts has a very real – often over generations – have helped shape its psychological and political reluctance to implement psychology and actions. Discussion of historical CSBMs, and this must be overcome to provide any narrative has not been tried in these conflicts, hope of success. because there is still suspicion that the point of such discussions is to force a unified view or evaluation Discussion of economic engagement fell into of events. However, discussions have the potential three categories: trade, economic assistance, and to give each side a more complete view of how the infrastructure co-operation. Trade must be divided: other side has interpreted events, and how those there is “normal” trade, even in the informal market; interpretations have affected the other side’s actions there is also contraband. The former is a valuable over the years. Reconciliation is a frequent goal tool for maintaining mutually advantageous contacts of international engagement, as it is essential for between societies, but contraband, which capitalizes sustainable settlements. However, the sides in these on the economic distortions caused by the conflicts, conflicts currently view the term in a prosecutorial only empowers those who have a stake in the light, to punish “criminals” on the other side. True continuation of the frozen status quo. Economic reconciliation demands tolerance, which is still assistance has improved the lives of many, but while lacking on all sides of these conflicts. it has generated good will toward donors, it has rarely done so between recipients on opposing sides. Capital infrastructure co-operation, for example on the Enguri dam and power station jointly operated by the Georgian and Abkhaz authorities, has been successful in improving the lives of populations, but that has not translated into better relations in any other field. Discussion of human dimension engagement fell into three categories: dialogue, historical narrative, and reconciliation. Bilateral Track-2 dialogue has been tried many times, with modest success: a proportion of the participants on one side may come to “humanize” their conceptions of a few participants on the other. Bilateral Track-2 dialogue has not, however, led participants or the societies as a whole to lessen their existential fears that the enemy’s society aims to destroy theirs. Bilateral dialogue has 3 Key Recommendations Security For all conflicts, the task of developing effective • We recommend that the OSCE might most Confidence- and Security-Building Measures consists efficiently carry out its monitoring by creating of inducing the sides to overcome their reflexive a special monitoring unit based in Vienna that aversion to CSBMs; structuring mechanisms, could regularly monitor all the conflicts. The acceptable to all sides, for implementing CSBMs; current High Level Planning Group could take on and choosing individual CSBMs that will make real a second hat to serve as the core and repository of improvements in security. expertise for such a monitoring body. Overcoming resistance to CSBMS: • We recommend drafting a specific document • For the Karabakh conflict, in which the sides containing a menu of CSBMs, with the OSCE have repeatedly rejected calls for CSBMs, we as the repository. The sides in any particular recommend renewed diplomatic pressure focusing conflict could unilaterally – but in an agreed, on the safety and welfare of civilian populations synchronized way – notify the repository that vulnerably close to the line of contact. they pledge to implement specific measures within the menu, and request the OSCE to • For Abkhazia and South