ABKHAZIA AFTER RECOGNITION - CHALLENGES AND PERSPECTIVES (Article of the Minister of Foreign Affairs of Abkhazia)
The recognition of the independence of the Republic of Abkhazia by the Russian Federation and the Republic of Nicaragua in August 2008 became a crucial point in the most recent history of Abkhazia. This event influenced not only the domestic situation in the Republic but also processes taking place in world geopolitics. In many respects, the recognition was crucial for Russian policy as well. Whilst he was President, V.V. Putin formulated new principles for modern Russia such as a definition of national priorities, pragmatism and economic effectiveness. These principles in turn entailed serious reorganization of the work of the Russian diplomatic service. It became obvious that the direction of foreign policy activity of the Russian state was being altered. One can say that recognition of the independence of Abkhazia and South Ossetia by the Russian Federation marked a new period of development, and transition to the new role of Russia in ex-Soviet territories.
In addition, the August events will have great consequences, if not for world order then certainly they will play an important role in the formation of a new political landscape in the Caucasian region, as they put prerequisites on a review of world order. Analysts and diplomats more and more frequently speak about reformalization of political geography and reformalization of centers of influence. According to the British politician Paddy Ashdown: “We are at the beginning of one of those periods of history when the foundation on which established order is kept begins to move and a new world structure appears”.
The development of democratization of international relations has led to the situation whereby world states and great powers are obliged to act following not only considerations of the balance of forces and narrow national interests, but also international legal standards confirming the equality of large and small sovereign states. Small countries today have more opportunity than ever to rely on the norms of international law. Despite various assurances that the recognition of the independence of Abkhazia by Russia has no stable international legal basis, as it is interpreted as recognition of territories officially included within the structure of another sovereign state, Russia as an independent political entity has the right to recognize Abkhazian independence, relying on the principle of the right of a nation to self-determination. The opinion that Russia by its actions undermined the well-established balance of forces fixed after the collapse of the Soviet Union is mistaken. It should not be forgotten that the first step on the way to a review of international order was the recognition of Kosovo, initiated by western countries. I doubt whether it should be considered that recognition of our republics by Russia is its reply to the behavior of its European partners. If Russian politicians had any doubts about whether to recognize Abkhazia and South Ossetia or not, the war unleashed by Georgia completely swept aside all reservations, and became the catalyst for alterations to the political map of the Caucasus.
The reason for recognizing the independence of Abkhazia and South Ossetia was not only the historical aspiration of our nations to independence, but also because recognition became a necessary condition of safety for peoples living here.
Notwithstanding the false notion imposed by Georgia and fixed in western circles that Russia followed the idea of annexation of Abkhazia, it should be noted that it was Russia that became the guarantor of the non-resumption of regular hostilities from the Georgian side. One of the sorest points in the problem of protection of Abkhazian statehood will be resolved with Russian Federation assistance. This will be defense of the border along the Ingur River against possible attacks from Georgia, which had often occurred previously. Recognition of Abkhazia by Russia is a guarantee that there will not be any more treacherous attacks against our country.
It was not easy for Russia to recognize Abkhazia and South Ossetia under external pressure. But August events showed how easy it was to break all agreements, reached by peaceful means at the negotiation table with the participation of authoritative international mediators, and become the apogee of “territorial integrity” as Georgia did. Georgia is guilty in the development of events and nobody else.
A lot of experts consider that recognition of the independence of Abkhazia and South Ossetia by Russia will not have any legal consequences, as it is regarded as a unilateral step and is not taken seriously by the international community. They also refer to that recognition as contrary to international legislation, as the sovereignty of Georgia and its territorial integrity are recognized by the whole world, and Russia and Nicaragua are the only countries which call this fact into question.
The whole period since recognition we may call an attempt by the world community to analyze the August event of 2008 and try to understand its reasons. After the incredible information attack of August 2008 many political figures began to ask the question of how much they are guilty regarding the events, or whether Russia is not so guilty, or whether Georgia became a victim of the power ambitions of its huge neighbor. Great attention is being paid to how new entities of international law will be functioning now. It is interesting for everybody to know if Abkhazia and South Ossetia will be viable in coping with the responsibility entrusted to us and how consistent and independent will be our foreign policy.
Specialists and interested political forces expressed their alarm relating to the unilateral orientation of Abkhazian ties with the external environment, namely with Russia. However nobody showed interest in asking the question “Why had the same external environment showed scant interest in the establishment of ties with Abkhazia?”
The basic mistake of the western world in its relationships with Abkhazia is that they have been built and are being built through the prism of West - Russia relations.
Georgia acted skillfully using the contradictions of great powers, and firmly consolidated its status as an ally of the west in the Caucasus. When Georgia more than once underlined its aspiration to full integration in the European area, it was easy to specify on whose side the sympathy of leading western political figures would be. Leaders of many western states still follow this line. The international community unfortunately seemed to be not ready to recognize the realities of the modern age, drawing its official opinion of the situation through continuous public statements and accusations from Georgia. Despite this, the fact of recognition of South Ossetia and Abkhazia by Russia is visible confirmation of its refusal to annex these supposedly Georgian territories, as our opponents try to show.
After official recognition by the Russian Federation, the level of our mutual cooperation in accordance with standards and rules of establishment of equal relations among independent states has come to a new position. The formation of stable good-neighborly relations with Russia is not only strengthening our position within the nearest vital area, but is also a guarantee of the complex future development of our states.
Analyzing the level of Russian-Abkhazian relations it should be noted that Russia is interested in Abkhazia appearing as an established state. Our republic being not recognized by any of the independent countries of the world has already been an example concerning a self-sufficient entity of international law with its attributes of an independent state. Moreover, the Abkhazian state has recently developed under extreme conditions such as economic blockade, political isolation, socio-economic dislocation and other consequences resulting from the Georgian-Abkhazian war.
Our Republic prior to its official recognition had the attributes of an independent state, including democratically formed organs of governmental authority, legislation and army. Many experts, some of whom are from the west, confirm the fact that Abkhazia was established as a viable mini-state even under the conditions of many years of oblivion.
Priorities among our tasks include the development and support of a democracy basis in the country within active and constructive cooperation with the external world. Abkhazia aspires to support and develop friendly relations with the countries of the world on the basis of mutual understanding and mutually beneficial cooperation. In this connection the Ministry of Foreign Affairs of the Republic works towards the extension and deepening of international contacts, participates in international discussions, conferences and forums, and despite restrictions in resources it lobbies for and upholds the interests of Abkhazia within the world community.
Today the main partner of the Republic of Abkhazia in the international arena is the Russian Federation, linked with Abkhazia by traditional ties of friendship. A Treaty of Friendship, Cooperation and Mutual Assistance opens huge facilities for our Republic in the socio-economic, trade, cultural and military spheres. This Treaty allows for the provision of security along our borders and the preservation of the sovereignty of the Republic of Abkhazia. Article 4 of the Treaty confirms that our countries will jointly take all measures to remove threats of war, prevent violations of peace, and retaliate against acts of aggression towards them from any state or group of states.
The Treaty of Friendship, Cooperation and Mutual Assistance also provides for the defense of the ethnic, language, cultural and religious identity of the people of Abkhazia. For the achievement of a high level of economic integration, our countries will develop trade and economic cooperation and take measures to achieve power system interconnection, electronic systems, and telecommunications.
A Memorandum on mutual understanding of matters of cooperation in international relations among the MFA of our states has been concluded. It will activate the work of the Foreign Office in all directions. According to the Memorandum, the Russian Federation will present the interests of the Republic of Abkhazia in other countries through its diplomatic offices and it will promote the achievement of international recognition. Russia is also ready to facilitate the entrance of Abkhazia into the international organizations of which it (Russia) is a member.
However, the basis of Abkhazian foreign policy is the necessity for recognition of the Republic by the world community, together with the strengthening of regional positions and an increase in competitiveness within the international arena, which will strengthen the attractive image of the Republic. In this regard it is necessary to make efforts to ensure that the Republic is an active participant in international cooperation in the broad sense. In particular we must exercise a strategy of openness to the external world, use propaganda directed towards the creation of a positive image of our country, attract foreign investments and integrate the Republic into regional and world economic activities.
Modern Abkhazia is at the stage of building a young, legal, democratic state and welcomes direct assistance from nations which have incorporated a complex approach to security and stability within their country and are ready to share their experiences. In addition, we are on the way towards our ethnic and cultural revival, which has been suppressed during the 20th century under a far from peaceful coexistence with the Georgian ethnic groups within the borders of Abkhazia.
As for perspectives and possibilities of a negotiation process with Georgia, it should be noted that we are concerned about the “political inadequacy“ of the Georgian leadership, with its regular violation of signed agreements and unwillingness to develop dialogues or to compromise. The Law on occupied territories is a real confirmation of this. The leadership of Georgia shows us that it is not willing to conduct peace negotiations diplomatically and may have plans for a forceful revenge.
Time has shown that efforts towards the "construction" of a united Georgian state and attempts by the Georgian leadership to unleash a propaganda machine across the international arena under the pretext of being a victim of Russian aggression, and thus to internationalise the conflict, led to nothing. The events of August 2008 ended with the collapse of any illusions concerning the speedy ”restoration of territorial integrity” of Georgia from both a political and military point of view. The impression is given that the USA is now using Saakashvili as an instrument to threaten security in the Caucasus and as a stimulant to headaches for Russia.
The policy of Tbilisi regarding Abkhazia still continues to be at a dead-end. One of the fatal illusions which Georgia has is a belief that the future development of Abkhazia totally depends on Russia. In such a situation, the role of Abkhazia in planning its own future and of course its level of involvement in the international political process would not just be negligible, but would be considered as non-existent. However, Abkhazia has proved its independence and diplomatic capability and has clearly asserted its position with regard to political opponents. More than just that, the Abkhazian side has attained respect for their balanced foreign policy, both domestically and from international intermediaries, and has shown the ability to compromise, whilst at the same time not derogating from the interests of the country. Abkhazia had always resolved its fortune independently, as proved by the centuries-old history of the Abkhazian nation, during which time it has endured plenty of different problems and deprivations. The next manipulative model of propaganda is not working, just as the calculated Georgian plan on the easiest way of solving the “Ossetian problem” in a “short period” also did not work.
More than that, as was proved by the last presidential elections in Abkhazia our people will not tolerate any outside pressures and it is impossible to manipulate them. A point of view can only be given, and the nation then decides what to choose. Referenda and numerous mass meetings of the Abkhazian peoples have repeatedly shown their wish to live within a Russian protectorate.
The events of August 2008 bore witness to the necessity of applying new methods of resistance to challenges and threats coming from Georgia and from forces supporting and promoting its interests.
During this period the Georgian leadership merely strengthened and confirmed our belief in the impossibility of constructive dialogue and despite repeated attempts to establish such dialogue the official position of the Georgian leadership, expressed in provocations and regular build-ups of military forces along the border regions of Abkhazia, threatened our state and destabilized the situation all over the region, which could not enable any negotiation process to continue.
Georgia itself is experiencing hard times. There are serious problems both in the internal political situation and in the foreign policies of the country. Power crises, economic problems and a separatist movement within regions densely populated by national minorities threaten to grow into a national liberation movement for independence from Tbilisi. Such are the realities of today’s Georgia. The tough policies of Georgian officials concerning national minorities and opposition forces bear witness to the short-sightedness of the Georgian politicians who risk crumbling Georgia into small pieces.
Georgia has proved itself to be an unreliable partner in the foreign policy arena. After the great hopes which European states placed in Georgia, disappointment followed. The events of August 2008, i.e. the treacherous attacks by Georgian troops against South Ossetia, proved that Tbilisi will not stop at any price in its struggle to achieve its goals, even if its actions contradict all existing standards of international law and basic ideas of humanity. The Georgian officials proved by their actions that the lives of people they consider to be Georgian citizens do not mean anything to them in their struggle for ideals which have become unreal. Such an anti-human policy of the Georgian officials cannot and must not find support from any of the civilised states of the world.
In addition, attempts by Georgia to form a circle of allies with common interests at regional and global levels seem to be unsuccessful. Thus the GUAM organisation established outside of the CIS framework to weaken economic and energy dependence upon Russia, and also to join allies for the resolution of their territorial issues, did not justify the hopes entrusted to it at the early stage of its formation. The union is being weakened despite its initial open support from the USA. Some participants have already commented on its non-viability. For example, the President of Moldova, Vladimir Voronin, has said that despite numerous attempts at reviving GUAM, the organization remains without any real prospects.
Furthermore Saakashvili, by displaying the attributes of a militarist, decreased the opportunity for his country to obtain NATO membership. Responsibility for the military actions of Saakashvili should be shared equally between the USA government and some EU countries. They must not have understood at first what measures Georgia had taken in South Ossetia. An important point is that the events in South Ossetia showed an internal crisis in the EU relating to its eastern neighbours, principally Russia, and the fact was demonstrated that the EU had no strategy regarding Eastern Europe.
It is impossible to achieve constructive dialogue with a country which has an unstable government, in an environment of complete infringement and violation of human rights and the use of aggressive methods to solve both internal and external problems. The threats backed up by deeds from the Georgian government towards Abkhazia, could not help but affect the Abkhazian attitude towards the present Georgian government. Therefore the main question Abkhazia had to decide was that of security. Today, when we have actual guarantees of security, our next task is the development and upgrading of the socio-economic situation. Through cooperation and agreements signed with the Russian federation in different fields, new possibilities have opened.
It is known that Abkhazia has a unique recreation potential. Tourism in Abkhazia is one of the most dynamically developing branches of the economy, and is a notable source of income for the budget. Promoting Abkhazia around the world as an established tourist country and the development of a constant tourist flow into the country will help to create a positive external view of Abkhazia as a stable country, moving towards a step by step entry into the international political and economic arena. Abkhazia is happy to exchange experiences with tourism-oriented countries ready to share practical knowledge in this field. Also, Abkhazia has sufficient potential for the development of natural, agricultural and other resources. Despite its isolation from the world economic and financial processes, using validated economic policy Abkhazian goods will succeed in the world market. Russia’s market is big enough to sell a variety of products from Abkhazia.
Therefore we see the perspectives for our country’s development as rather positive ones. Today when our destiny is in our own hands we must do everything possible to ensure our country’s prosperity.
Not forgetting our main priorities in foreign policy, we have set ourselves new tasks. Among the main external policy directions we still consider the achievement of wide international recognition, integration in the world political and economic institutions, and the establishment of mutually beneficial political and economic relations not only with countries which are our nearest neighbours in the region but also with all other countries ready to co-operate. The establishment of a reliable partnership with Turkey and the European Union is not the least important. We are both interested in and active in developing close ties with the representatives of ethnic Abkhazian communities around the world and particularly in Turkey, Europe and the Middle East. Close connections with community representatives abroad may have a positive influence on the recognition process. Such contacts may help to overcome the information isolation of Abkhazia and assert our interests in foreign countries.
Attempts to review the UN Mandate in the region have unfortunately failed because of the biased position of several countries and because of the unwillingness of the Georgian side to compromise. We have repeatedly stated that our relations with the Organization of United Nations in the framework of the current mandate are unacceptable. In the light of our recognition, the UN Mission could not be considered Mission UN in Georgia any longer, as this simply contradicts logic. We reasonably supposed that the UN Mission whilst implementing its actions should take into consideration the existing realities within international relations. However, despite all our efforts to keep the Mission in Abkhazia, the resolution project proposed by the UN Security Council was absolutely objectionable to us. In fact it denied the existence of Abkhazia as a state and this as we repeatedly emphasised was completely unacceptable.
Today we are negotiating with several countries on the issue of recognition. Despite the fact that some countries, particularly the USA and some members of the European Union, seriously criticise the policy of those who recognised Abkhazia, there are however countries that support Abkhazia in its aspiration for recognition.
Abkhazia is facing a wide range of issues, concerning in the first place internal and external aspects of the Republic’s development after recognition. Abkhazian society should jointly decide what it wants from the recognition and what the role of Russia should be in the internal as well as external policies of the Abkhazian state.
Despite its obvious isolation from the world community, Abkhazia continues to attract great attention from western powers and leading international organisations as well. The main challenge towards official recognition of Abkhazia is the preconceived and critical attitude of the world community to the idea of Abkhazia as an independent state. However such a position is one more stimulus for us, an incentive for the strengthening of our domestic resources. Despite the cool position of Europe and the west relating to the recognition of Abkhazia, current dialogues give a reason to believe that there is interest in further contact. The main thing is to specify the character of such liaisons and understand the interests of Abkhazia itself. It is wrong to believe that if Europe and the USA have negatively reacted to the fact of recognition of Abkhazia, then their opinion is not so important to us. This is by no means so, and we continue to act in a European direction so as to be heard in the western auditorium. Many years experience of foreign policy activity have trained us not only to fight for our own interests, but to be patient as well. I’d like to believe that recognition of our country by the world community is not too far off.
SERGEI SHAMBA, Ph.D (History)
Minister of Foreign Affairs
16.06.09
