GEORGIA: RUSSIANS TIGHTEN CONTROL IN GALI

C O N F I D E N T I A L SECTION 01 OF 02 TBILISI 001358 SIPDIS E.O. 12958: DECL: 07/24/2019 TAGS: PREL PGOV MOPS RS GG SUBJECT: GEORGIA: RUSSIANS TIGHTEN CONTROL IN GALI REF: A. TBILISI 0924 ¶B. TBILISI 1136 ¶C. TBILISI 1150 ¶D. TBILISI 0322 Classified By: Ambassador John F. Tefft for Reasons 1.4(b) and (d). ¶1. (C) Summary and comment. In recent weeks Russian Border Guards have tightened control over Abkhaz administrative boundary line crossing points. In a July 22 incident, they detained over 20 ethnic Georgians attempting to depart Abkhazia, confiscated Georgian passports from nine of them, and planned to deliver the nine into the custody of local Abkhaz law enforcement officials. Georgian press reported that some of those detained agreed to accept Abkhaz "passports," while others would be forced into the Abkhaz military. This is the first instance of a large-scale enforcement action by Russians since the Border Guards assumed control of the boundary (ref A). It raises questions about Russia's respect for the human rights of Gali residents, who consider themselves Georgian citizens and are both economically and emotionally dependent on ready access to the rest of Georgia. In other developments, the Georgians' discovery of a transmitter in connection with the June 21 attack on an EUMM convoy, along with the approaching anniversary of the August 2008 war, convinced the EUMM to increase its risk assessment for the area along the Abkhaz boundary line. End summary and comment. JULY 22 DETENTIONS ¶2. (C) In its July 23 weekly briefing for EU members and other diplomats, EU Monitoring Mission (EUMM) officials reported on the July 22 incident. According to one of the passengers, Russian Border Guards at Meore Otobaia stopped one bus and one minibus intending to depart Abkhazia. The Border Guards asked to see the identification of all 27 passengers (press accounts reported 24 detainees). Those with Soviet-era passports were allowed to continue, while nine who carried Georgian passports had their documents confiscated and were to be turned over to the custody of local Abkhaz law enforcement in the town of Gali. One of the nine later escaped and crossed into Georgian-controlled territory on his own. He was then detained by Georgian officials for not having identification. This individual told EUMM officials directly of the incident at a Georgian police station in Darcheli. The EUMM had no further information about the fate of the other 8. Georgian TV station Rustavi-2, however, reported on July 24 that 24 remained in Russian custody, of whom 13 would be released after accepting Abkhaz "passports," while 11 faced conscription into the Abkhaz military. BROADER TRENDS ¶3. (SBU) At the briefing, EUMM officials also reported that in general the Russian Border Guards have imposed stricter control on the boundary in recent weeks. Near Abkhazia, Georgian police officials have reported to the EUMM that the Russians have established full control of the crossing points at Shamgona, Rukhi, Khurcha, Pakhulani and Orsantia; EUMM officials themselves have observed Russian control at Orsantia and Eritskali. In some cases, the Russians have erected additional physical infrastructure, such as fencing, to reinforce the crossing points. Outside South Ossetia, Russian Border Guards newly established at the checkpoint at Perevi have proven unwilling to engage with EUMM officials; they have demanded that such requests for contact be conveyed "through official channels." EUMM officials told PolOff that Q"through official channels." EUMM officials told PolOff that anecdotally, cases of individuals being denied permission by the Russians to cross the Abkhaz administrative boundary are increasing and are now a daily occurrence. The officials indicated the EUMM would likely raise questions about the Russians' actions and intentions at the next meeting of the Joint Incident Prevention and Response Mechanism for Abkhazia, scheduled for July 28 in Gali. ¶4. (SBU) Recent Georgian press articles report confrontations between the Russian Border Guards and Abkhaz officials over respective roles in boundary control. On July 20, for example, Georgian media reported shots being fired as the Russians assumed control of some Abkhaz points. No injuries were reported. Although these reports are difficult to confirm, one possible explanation for such friction is the potentially lucrative nature of such positions; Abkhaz officials used to taking even modest bribes from travelers could stand to lose significant sums if the Russians put a stop to such informal arrangements. TBILISI 00001358 002 OF 002 EUMM INCREASES RISK ASSESSMENT FOR BOUNDARY LINE ¶5. (C) EUMM Deputy Head Gilles Janvier announced at the briefing that the EUMM has raised its risk assessment from "medium" to "high" (the third of four categories, with "critical" being highest) for the area along the administrative boundaries. He explained the change was based on two developments. First, Georgian police informed the EUMM that it found evidence of a transmitter used in the detonation of an explosive device that killed an ambulance driver in an EUMM convoy on July 21 (ref B). The EUMM therefore determined that the attack was most likely intentional. Second, the EUMM determined that the risk of incidents could increase as the anniversary of the August 2008 war approaches. Janvier emphasized that the EUMM's risk assessment had not changed for the area of Georgia beyond the boundary area, i.e., the vast majority of Georgian-controlled territory, where most EUMM personnel operate on a daily basis. COMMENT: MORE HARDSHIPS FOR GALI? ¶6. (C) Russian officials have consistently maintained that the involvement of their Border Guards in the control of the administrative boundaries of Abkhazia and South Ossetia would increase security along those boundaries. The imposition of an apparently stricter regime could be portrayed as an effort to reduce the likelihood of destabilizing incidents, as well as to impose a more standardized, less corrupt system of control. Nevertheless, any further reduction in the local population's freedom of movement will impose serious hardships on their already precarious existence. Furthermore, reports of confiscated Georgian passports, imposed Abkhaz "passports," and compelled service in the Abkhaz military, if accurate, suggest that earlier concerns about the potential for increasingly serious human rights violations in Gali are beginning to be realized (refs C, D). TEFFT