Georgia
On My Mind
by Joe Lokey,
Deputy Director
This issue of
the Journal of Mine Action focuses on one of the world’s most interesting
regions in the world as it examines landmines and unexploded ordnance in Europe
and the Caucasus as well as highlighting organizations from that region engaged
in humanitarian mine action. Whether we are discussing landmines, post-conflict
reconstruction, geo-politics, resources, or regional security, you can’t seem
to have a comprehensive discussion of the region without, in some way, viewing
Georgia as a key to the future of the Caucasus.
The landmine
situation in Georgia is arguably heaviest in the contested Abkhazia region
resulting from the internal conflicts between separatists and national forces
in 1992-1993. There are estimates of approximately 35,000 landmines in 500
different areas with only a few being marked by HALO Trust. The post-war violence
continues as the UN Observer Mission In Georgia (UNOMIG) has been targeted
by terrorists as have civilians and CIS peacekeeping forces who have had to
contend with renewed laying of mines in the Gali region. The mine incidents
from the attacks since 1994 are estimated at 106 injuries and 64 people killed.
There are 480 amputees in Abkhazia with the ICRC estimating that 375 of them
using their orthopedic workshop. No psychosocial rehabilitation programs are
evident and mine awareness programs are minimal. HALO estimates that Abkhazia
could be relatively mine safe within 5-7 years with an increased emphasis
and the necessary resources. Much of the aid to Abkhazia is predicated on
political issues being resolved therefore the Abkhazi themselves hold the
key to a solvable and definable mine problem that is key to their reconstruction
and redevelopment.
In addition to
these internal concerns, Georgia’s neighbors provide a mine threat of a different
kind. As the war in Chechnya shifts from an all out ground assault to one
of counterinsurgency and guerilla warfare, the southern Caucasus along the
80-kilometer (48-mile) Chechnya-Georgia border has become a focus for the
Russian military looking to wipe out the last remnants of the Chechen resistance.
Control of the mountainous border, particularly in the Argun gorge and the
village of Shatoi, is a strategic imperative for what remains of the Chechen
fighters looking to preserve their claims to independence from Russia.
Georgia refuses
to become involved in the war and has stated that it checks all incoming refugees
and has registered over 5,800 Chechens sheltered in five different villages
in the Akhmet area. The Georgian Ministry of Foreign Affairs indicates 1,000
of these are men of fighting age. This stated Georgian neutrality is unlikely
to sway Russia where the words "Chechen," "paramilitary,"
and "terrorist" are used interchangeably. Russian intelligence claims
the Chechens have bases and medical facilities in Georgia and fly two helicopters
to resupply units within Chechnya. Even though there have been joint border
operations (code-named Undercover) by the Georgian and Russian police and
border forces in January, the existing situation is likely to disintegrate
rapidly. The Organization for Security & Cooperation in Europe (OSCE)
also has a monitoring unit along the border. The first test of how effectively
Russia has sealed off the borders may come in late February marking the anniversary
of Stalin’s deportation of the entire Chechen population to Central Asia in
1944. This date is expected to draw some sort of offensive action from the
Chechen resistance. The probable outcome can realistically be a heavily mined
Georgia-Chechnya border by the Russians to seal off whatever insurgents remain
in Georgia. This tactic would mirror that used in Afghanistan which saw an
indiscriminate and heavy proliferation of air-delivered PFM-1 landmines by
the Soviets into inaccessible regions believed to contain large groups of
the Mujahadeen.
These 1,000
Chechens in Georgia, believed to be gathering in Pankis gorge, were described
by Konstantin Totsky, Director of Russia’s Federal Border Guard Service, as
militants waiting to break into Chechnya. This is raising the possibility
that the Russians are generating a "self-defense" rationale and
providing justification for an incursion into Georgia. Russia still retains
a large military presence in Georgia under the terms of Georgian Independence
signed in 1991 but are presumably in the process of closing their three largest
bases by July 2001 although talks on handing over the last of these don’t
begin until sometime this year. The implications for additional APL use by
the Russians are significant and the response from the West will be crucial
in swaying Georgia toward a more pro-Western stance.
The ties between
the US and Georgia are growing. Last October, the US presented the Ministry
of Defense with over $1.8 million USD in uniforms and, in the same month,
demonstrated the capabilities of the UH-1H helicopter which will also be part
of a 10 helicopter package granted to Georgia under the Foreign Military Financing
(FMF) program. These were preceded earlier by a $1.6 million USD package of
NATO-compatible radios and the establishment of a full-time Military Liaison
Team based in Tblisi and coordinating activities with the Georgian Armed Forces.
These and other significant cultural exchanges and economic arrangements have
been a clear indication of support for Georgia and desire for an expanded
US-Georgia relationship.
Probably the
most crucial mine action program planned to date was announced by the US Interagency
Working Group (IWG) on Humanitarian Demining on December 9, 1999. In what
is being referred to as the Beecroft
Initiative, the US Embassy in Tblisi has been asked to approach the
Georgian government on the possibility of establishing a training center for
humanitarian demining to work with not only the Georgian forces but also host
units from both Azerbaijan and Armenia to be trained together. This innovative
training concept was developed by, and thus named for, Mr. Robert Beecroft,
Deputy Assistant Secretary of State for Political-Military Affairs. Armenia
has agreed to participate and Azerbaijan was recently approved for US support
as well. The US is sending a Requirements Determination Site Survey (RDSS)
Team to work with the Georgian government to develop a specific course of
action for implementing this training program. This initiative, once underway,
will be a significant step toward regional stability and cooperation, demining
capacity building, and effective information sharing and communication necessary
for security and development.
The geography
and economy of Georgia reflect a pivotal position in the Caucasus and overtures
by Georgia to the West indicate a willingness to establish itself as a key
player in the formulation of the future of the Caucasus states. Balancing
these new relationships with historic ties to Russia and ethnic and cultural
influences from Iran will certainly challenge the Georgian government. The
landmine threat, and the region’s ability to address it, can be a success
story very quickly with a broad range of cooperation. The threat of new mines,
both in Abkhazia and along the Chechen boarder, must be avoided if any progress
at all is to be achieved. As the Beecroft Initiative unfolds and the Chechen
end game plays itself out, Georgia will be on my mind - a lot.
