GEORGIANS PREPARED TO COMPROMISE WITH RUSSIA IN

C O N F I D E N T I A L SECTION 01 OF 02 TBILISI 002280 SIPDIS E.O. 12958: DECLQ2/17/2019 TAGS: PREL PGOV PBTS AM RS GG SUBJECT: GEORGIANS PREPARED TO COMPROMISE WITH RUSSIA IN ORDER TO OPEN KAZBEGI-LARSI CROSSING REF: A. TBILISI 1101 ¶B. MOSCOW 2737 Classified By: Ambassador John R. Bass for reasons 1.4 (b) and (d). ¶1. (C) Summary. The Governments of Georgia and Russia are continuing quiet talks regarding the opening of the land border crossing at Kazbegi-Larsi. Georgian FM Vashadze told the Ambassador that Georgia, Russia and Armenia will meet December 23-24 to continue the discussions begun in Yerevan in October. President Saakashvili has publicly stated his intention to pursue reopening Q border, and since the October meeting, Georgia has made the strategic choice to agree to Russia's stipulation that the crossing serve only trade between Russia and Armenia and thaQeorgian citizens be banned from participation. According to FM Vashadze, Georgia is ready to compromise and meet many of Russia's conditions in order to help Armenia by facilitating trade with Russia. Other Georgian officials told us that the reason the government wants the border open is because they believe it will negatively affect any future Russian invasion plans of Georgia. Opposition leaders and the local population have raised concerns that such a move would not benefit Georgia in any way and could actually allow Russia to gain a foothold in the region. End summary. ¶2. (C) Comment. Georgia's willingness to concede to Russia's demands in order to help Armenia, when Georgia itself would not directly benefit, reveals the Georgia's commitment to supporting its neighbor. Georgia's leaders likely hope that agreeing to these stipulations will garner favor in the region and show their maturity on an international level. Howeer, the government may have to do more to gain domestic support, as much of the local population in the Kazbegi region is concerned about what benefits the reopening of the border crossing for trade with Armenia will bring to them. End comment. REACHING OUT ON THE BORDER CROSSING ¶3. (C) The topic of reopening the border was initially raised in May 2009, when Russia, through the Swiss Embassy, conveyed to Georgia that it had completed reconstruction of their facility at the crossing and was ready to start negotiations on reopening the border (ref A). Georgian MFA Deputy Director of European Affairs Kakha Chitaia told us that within ten days, the Georgians agreed to negotiations, with the stipulation that the Swiss be present at any talks. Russia never formally replied, but told the Swiss that that such a condition made talks impossible. Eventually, Saakashvili decided the checkpoint should be opened and tasked Foreign Minister Vashadze to call a meeting with the Russians in Yerevan, with Armenian participation. NEGOTIATIONS BEGIN IN YEREVAN ¶4. (C) According to Chitaia, who led the delegation to Yerevan in October, the initial three hours of the meeting were spent with Chitaia asking basic logistical questions, such as the types of vehicles that would be allowed to cross the border and the operating hours of the checkpoint. The Russian side did not respond substantively until after a coffee break, during which time Chitaia speculated calls were placed to Moscow for instructions. After providing answers to Chitaia's questions, the Russians then stipulated that the crossing should not be open to Georgian citizens, although Qcrossing should not be open to Georgian citizens, although Abkhaz and South Ossetian "citizens" should be allowed to use it. At this point, Chitaia ended the negotiations, noting that this was an impossible concession for Georgia to make. SAAKASHVILI SUPPORTS OPENING THE CROSSING ¶5. (C) During a National Security Council meeting on November 13, Saakashvili referred to the talks in Yerevan and discussed reopening of the checkpoint with government members and opposition representatives. In televised remarks after the meeting, Saakashvili said that the parliamentary opposition had expressed some fears regarding the possible reopening, but Saakashvili promised them that he would keep them fully briefed on the situation. GEORGIA CONCEDES TO RUSSIAN DEMANDS ¶6. (C) Vashadze told the Ambassador that Georgia has agreed to reopen the crossing only to transit trade between Russia and Armenia, and that Georgian citizens would not be allowed TBILISI 00002280 002 OF 002 to participate in moving goods in any way, not even, for example, as truck drivers or as owners of Georgian trucking firms. (Embassy note: It is not yet clear if Georgia will be allowed to inspect the vehicles or charge tariffs. End note.) Vashadze said that while Georgia did not like these demands, it was willing to agree in order to help Armenia. He also said that Russia had been pushing for a legal agreement to formalize the transit, but the Georgians have not consented, fearing that since it would only cover this border crossing, it could be used to help legitimize the status of Abkhazia and South Ossetia. According to the Foreign Minister, the two sides agreed to continue negotiations on December 23-24. LOCAL POPULATION NERVOUS ¶7. (C) On November 21 Christian Democrat leader Giorgi Targamadze met with residents of the Kazbegi region, who have expressed concerns about North Ossetian territorial claims on the region and possible Russian encroachment; there have been reports of North Ossetian allegations that Kazbegi was originally part of North Ossetia and was given to Georgia artificially. Targamadze told journalists after the meeting that while the country's national security should be taken into account, the checkpoint had to be opened due to the potential positive social and economic impact and development of local infrastructure. BASS