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