Caucasus Burning

So much has been left in ruins in the Caucasus in the past week. What chance is there of a salvage operation?

The landscape is littered with wreckage. First South Ossetia was ravaged; now Georgia is experiencing a great tragedy. Amid the wider carnage, the greatest losers are the 25,000 or so ethnic Georgians of South Ossetia. Only a month ago Ossetians and Georgians were buying and selling from one another in South Ossetia by day even as armed men in their villages exchanged fire at night. Now those Georgians face total dispossession, their homes burned by South Ossetian irregular fighters. Around 50,000 Georgians in Abkhazia are still in their homes, but they face a precarious future. These people have the greatest moral right to pass judgment on a long list of culprits.

Russia’s guilt is of course the most blatant. The Russian army has unleashed atavistic violence and allowed Ossetians and North Caucasians to follow in its wake, reinflaming interethnic hatreds that had begun to fade after the wars of the 1990s. The cost of this will be there for years and Moscow should pay the price, in terms of both economic compensation for the wreckage it has caused and international opprobrium. On the latter, Germany could take the lead by threatening to cancel the joint Nord Stream project — a Russian gas pipeline with a political agenda, designed to bypass Moscow’s critics in Poland and the Baltic states.

Next in line for criticism is the Georgian leadership, which has now all but lost the two disputed territories. Georgia is a small nation under threat from the Russia’s, and in the short term Georgians will rally around their leader. But there almost certainly will be a reckoning with their impetuous president, Mikheil Saakashvili.

Since coming to power in 2004, Mr. Saakashvili has been a man in a hurry. His economic reforms are impressive, but he was courting trouble from the start when he promised to win back Abkhazia and South Ossetia within five years. A brief look at the Balkans, Cyprus or Northern Ireland tells you that complex ethno-territorial conflicts need more time to heal than that. Yet Mr. Saakashvili deliberately thawed the (misleadingly named) "frozen conflicts," challenging the Russian-framed peacekeeping operations and moving his security forces closer to Abkhazia and South Ossetia. He kept up the economic isolation of the two territories and rejected any initiatives to open them up — for example, by allowing the Abkhaz to trade with Turkey — as a threat to Georgian sovereignty.

His rhetoric was just what the Russia’s wanted to hear and they moved in to fill the vacuum economically, politically and militarily. Many Abkhaz were unhappy about being swallowed by Russia, but the argument that Moscow was guaranteeing their security trumped all others. Now the Russia’s are triumphant.

How did Georgia’s 2003 Rose Revolution, which was greeted with such euphoria by Georgians, end up like this? I was present at Mr. Saakashvili’s first press conference after the revolution. There he said explicitly — and in Russian — that in contrast to his predecessor, Eduard Shevardnadze, he wanted "normal relations" with Russia.

Vladimir Putin, pushing first as president and now as prime minister to build the resurgent Russia that we saw rampaging through Georgia last week, played a leading role in this. But it is hard to imagine the wily Mr. Shevardnadze allowing himself to get sucked into a war with Russia.

Many Washington policy makers played their part, too. They loved the idea of a new "beacon of democracy" run by thirtysomething economic reformers astride an important energy corridor and standing up to Russia. But they all too often neglected to pay attention to what Georgia was actually doing. The Georgians basked in American attention and felt emboldened to challenge Moscow even more. When President George W. Bush stood on Freedom Square in Tbilisi in May 2005 and told Georgians, "The path of freedom you have chosen is not easy, but you will not travel it alone," they believed it meant something.

When I asked a senior U.S. official four years ago what Washington would do if Russia attempted a military assault on Georgia, he said, "We won’t send in the U.S. cavalry." But now it looks as though this was precisely what Mr. Saakashvili was counting on.

As for Europe, France and Germany might say that their cooler approach to Georgia all along looks wise in retrospect. But they have little to be proud of. The EU had the opportunity to approve a new border-monitoring force for Georgia in 2005, when the Russia’s blocked the continuation of the old one under the aegis of the Organization for Security and Cooperation in Europe. But France and Germany vetoed the plan. The unarmed force could have been an early-warning system had it been in place this year, and might have helped deter the Russian campaign.

Few Western policy makers have engaged seriously with the South Caucasus, and they would do well now to ponder the fact that South Ossetia was not even the most dangerous of the region’s conflicts. That dubious honor goes to Nagorno-Karabakh, a territory dispute between Armenia and Azerbaijan. There, tens of thousands of troops face each other across 110 miles (175 kilometers) of trenches, and angry rhetoric is strong on both sides. The fragile Karabakh cease-fire is observed by just six unarmed European monitors. If the world wakes up to the danger of the cease-fire breaking, there will have been at least one good outcome from the Georgian tragedy.

Negotiations over the Karabakh conflict have been fruitless so far, but they have come up with a useful formula for squaring the separatist circle. A draft peace plan under discussion would defer the issue of the status of the disputed region of Karabakh itself. Instead, the region would have some interim status short of statehood while other issues, such as the return of Azerbaijani land currently occupied by Armenia’s outside Nagorno-Karabakh, are resolved and refugees begin to return home.

That kind of solution now looks to be the most desirable one for Abkhazia and South Ossetia. The Abkhaz and Ossetians themselves have far more reason to want to live well with their Georgian neighbors than the Russia’s do. Giving them some kind of international guarantees and more power to dictate their own futures is the only way to lift the Russian wolf off their shoulders and allow at least some Georgian refugees to go home.

Yet it is probably too late. The Russia’s now have a tight grip and will try to keep others out. President Dmitry Medvedev said last week that Abkhaz and Ossetians "do not trust anyone but Russian troops…We are the only guarantors of stability in the region."

Answering that charge is a big physical and moral challenge for both Europe and the United States. If they want to fix things in the region, they need to consider a new version of the mass peaceful intervention they made in the Balkans from the mid-1990s, in the form of policemen and peacekeepers, human-rights investigations, and large-scale economic investment. It would be expensive, but in the end it would probably cost much less than doing nothing.

Mr. de Waal is Caucasus editor at the Institute for War and Peace Reporting in London.

Response

As civilians came under indiscriminate shelling last month in South Ossetia, uneasy memories were rekindled for many of us in the Caucasus who lived through the wars of the early 1990s.

As Thomas De Waal correctly mentions ("Caucasus Burning," editorial features, Aug. 19) if a new war breaks out in Nagorno-Karabakh — read: if Azerbaijan attacks Karabakh — it could result in even greater suffering and regional destabilization than what we have observed in Georgia.

If last month’s tragedy is to become an effective lesson to the international community, we hope to see immediate, focused diplomacy to rein in Azerbaijan’s aggressive posturing over Karabakh, condemnation of its officials’ hate mongering, and implementation of existing agreements to strengthen the cease-fire. These steps could put our region on the path toward demilitarization and peace.

My country has repeatedly asked Azerbaijan to commit to nonuse of force and to implement confidence-building measures along the Line of Contact and, more broadly, between the two publics. Azerbaijan continues to refuse any such steps — even cooperation on fighting natural disasters.

We know that the United States shares our view that the Nagorno-Karabakh conflict can only be resolved through peaceful means. Any settlement will be effective if it clearly reflects the realities on the ground and is based on the expressed will of the Nagorno-Karabakh people to live in freedom. We hope the United States and the other international mediators will not miss this opportunity.

Vardan Barseghian
Representative of the Nagorno-Karabakh Republic
Washington

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