GEORGIA: ARRIVAL OF RUSSIAN BORDER GUARDS IN

C O N F I D E N T I A L SECTION 01 OF 02 TBILISI 000924

SIPDIS

E.O. 12958: DECL: 05/15/2019
TAGS: PARM PBTS PGOV PREL MARR MOPS RS GG
SUBJECT: GEORGIA: ARRIVAL OF RUSSIAN BORDER GUARDS IN
ABKHAZIA AND SOUTH OSSETIA

Classified By: AMBASSADOR JOHN F. TEFFT FOR REASONS 1.4 (B) AND (D).


1. (C) Summary and comment. Two agreements signed April 30
by Russian President Dmitry Medvedev and Abkhaz and South
Ossetian de facto "presidents" Sergey Bagapsh and Eduard
Kokoity on "joint efforts for protection of state borders of
Abkhazia and South Ossetia," has further reinforced Russian
control in the disputed territories. These agreements
delegate to Russia the authority to protect Abkhaz and South
Ossetian "state borders" until their own border guard
services are established. The Government of Georgia strongly
condemned the agreements, as did the U.S.; the EU and NATO
also expressed their concern. Since the signing, the EUMM,
UNOMIG, and OSCE have observed the deployment of Russian
border guards along the Abkhaz and South Ossetian
administrative boundary lines. The agreement is a further
violation of the August 12 cease-fire agreement, which called
for the removal of Russian troops to the positions held prior
to the start of the conflict. End summary and comment.

REACTIONS TO THE AGREEMENT AND OVERALL OBSERVATIONS


2. (C) The agreements between Russia and Abkhazia and Russia
and South Ossetia were signed for a period of five years with
the possibility of automatic extension for another five
years, unless either side decides to suspend it. Medvedev
claimed the agreements were necessary to defend against
terrorism and cross-border crimes. The United States, EU,
and NATO expressed concern over the agreements and stated
that they are an infringement of the six-point cease-fire
agreement of August 12. The Georgian Foreign Ministry called
the agreements provocative and a violation of the August 12
agreement and the principles of international law. National
Security Advisor Eka Tkeshelashvili told PolOff that the
Russian border guards were currently in the process of
assuming control at the administrative boundary lines. She
observed that on one hand, this could be seen as positive for
the region, in that Russian troops are more professional and
disciplined than the Abkhaz and South Ossetian militia;
however, she also observed that being on the administrative
boundary lines gives the Russians more of a pretext for
taking military action, by claiming that they are protecting
citizens. EUMM noted that they have observed the arrival of
the Russian border guards in both Abkhazia and South Ossetia,
and that the Russian border guards are clearly exerting
control over the Abkhaz and South Ossetian militia. EUMM has
also seen the arrival of engineering units, who are in the
process of building new infrastructure.

OBSERVATIONS IN ABKHAZIA


3. (C) On May 2, General Anatoly Zaitsev, Abkhaz de facto
"deputy defense minister," stated that Russian border guards
had already begun to assume control of the "borders" and that
necessary construction was also beginning. Chief of the
Border Control Directorate of the Federal Security Service of
the Russian Federation in Abkhazia, Major General Yuri
Zviryk, held a press conference on May 6 and said that there
were sufficient numbers of Russian border guards in Abkhazia
to ensure a secure "border" and that sub-units would be
deployed along the coast with a focus on historical sites and
Qdeployed along the coast with a focus on historical sites and
populated areas. Zviryk also noted that during the preceding
week, Russian border guards had detained two vehicles and
eight people for "border crossing" violations. On May 15,
Abkhaz de facto "president" Bagapsh was quoted in Russian
press as saying that the deployment of the Russian border
guards in Abkhazia would be complete by the beginning of June
and would include 800-850 personnel.


4. (C) UNOMIG has detailed specific examples of the arrival
of Russian border guards along the Abkhaz administrative
boundary line since the signing of the agreement. On April
30, a Russian convoy was observed at Sukhumi heading south.
The Abkhaz de facto "ministry of defense" later clarified
that the convoy consisted of Russian border guards to be
deployed in the Gali region, noting that additional Russian
border guards were also expected to be deployed there.
Beginning on May 1 in several towns in the Gali and Zugdidi
regions, UNOMIG patrols observed the Russian flag raised
beside the Abkhaz flag for the first time since the
withdrawal of the peacekeeping forces in October 2008.
Patrols have also observed construction in progress at
several Abkhaz observation posts, as well as the addition of
new tents and an increased number of personnel. UNOMIG
patrols have already established contact with some of the new
Russian guards. On May 7, additional Russian border guards

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arrived in Abkhazia, and Zviryk stated that Russian border
guards would assume authority for the entire 168 kilometer
land "boundary" of Abkhazia, from the Upper Kodori Valley to
Pichora in Gali District. UNOMIG observed more Russian
border troops arriving May 9-11, and noted that more
observation points were now under Russian command and new
Russian positions were being established.

OBSERVATIONS IN SOUTH OSSETIA


5. (C) OSCE has observed evidence of new Russian positions
and forces along the administrative boundary line with South
Ossetia. On May 2, OSCE monitors reported large movements of
armored vehicles, including BTRs and BMPs, between Tskhinvali
and Akhalgori, which was thought to be a reflection of the
implementation of the April 30 agreement. Throughout the
first week of May, there were conflicting reports by the
Georgian police in the area regarding the deployment of
Russian border guards. However, on May 7 in Plavi, the
Georgian police reported that they believed Russian border
guards had replaced the South Ossetia militia. On May 8, the
patrol observed the construction of a Russian post in
Tsinagari. On May 9 at Ergneti, Russian armed forces
personnel stated that Russian border guards would staff the
checkpoints together with the South Ossetians, and in Odzisi,
Georgian police reported that they had information that the
checkpoint west of the Akhmadzhi bridge would be staffed by
Russian border guards as of May 13. Echoing the National
Security Advisor's comments, an OSCE monitor remarked to
PolOff that the region has been quieter since the FSB
arrived. (Note: The Border Guard Service of Russia is a
division of the FSB, or the Russian Federal Security Service.)
TEFFT