GEORGIA: TRYING TO WORK WITH TURKEY ON SHIP ISSUES

C O N F I D E N T I A L SECTION 01 OF 02 TBILISI 000072

SIPDIS

E.O. 12958: DECL: 01/14/2020
TAGS: PREL PBTS PHSA EWWT MOPS RS TK GG
SUBJECT: GEORGIA: TRYING TO WORK WITH TURKEY ON SHIP ISSUES

REF: A. EMBASSY TBILISI - EMBASSY ANKARA EMAILS

B. TBILISI 1665

Classified By: Charge d'Affaires a.i. Kent Logsdon for Reasons 1.4 (b)
and (d)


1. (C) Summary and comment. Georgia is willing to negotiate
with Turkey to find a way forward on Turkish commercial
vessel travel to Sukhumi, but is looking for cooperation from
the Government of Turkey to resolve technical issues. The
only Georgian redline is that all vessels stop at a port in
undisputed Georgian territory before traveling on to
Abkhazia. The question of ship transit to Abkhazia is only
one of many issues brewing in the Black Sea. Another issue
that will undoubtedly spark controversy, especially when/if
drilling occurs or discoveries are made, is the recent
agreement between the Russian and Abkhaz authorities and
their respective commercial interests to research and explore
for oil and gas off the Abkhaz coast. The Georgians appear
sincere in their desire to work with the Turks on vessel
travel to Sukhumi, but are frustrated with what they see as
the Turks' lack of engagement on practical issues that still
must be resolved. The GoG acknowledges our strong advice to
find a practical solution, with all Georgian government
agencies aware of U.S. concerns to avoid provocations.
However, in return for their restraint, the Georgians seek
corresponding pressure on Russia to discontinue their
provocative economic activities in Abkhazia. End summary and
comment.

MAKE IT WORK


2. (C) In a December 13 meeting, we emphasized to the MFA's
Director for European Affairs Shota Gvineria and Director of
Americas Division Otar Berdzenishvili the need for Georgia to
find a practical resolution with Turkey to commercial vessel
travel to Sukhumi. After consulting with colleagues in
Embassy Ankara (ref A),we relayed that the Government of
Turkey supports Georgia's territorial integrity and is
willing to agree to the stipulation that ships call first at
Poti or Batumi, but is looking for flexibility in the type of
shipments allowed - specifically, assurance that cargoes
other than humanitarian will be allowed. Poloffs also
conveyed the message that clearing the board of past
transgressions with some form of amnesty could be very
helpful to negotiations and urged the GOG to consider
carefully the negative ramifications of auctioning seized
Turkish ships back to their owners.

A BIT OF THE BLAME GAME


3. (C) Gvineria said that the Government of Georgia has
already made the political decision to reach a resolution
with Turkey on this issue and is determined to find a
mutually acceptable way forward. He said that Georgia's only
redline is that all vessels stop in Poti or Batumi before
proceeding to Sukhumi, and that all other issues are
negotiable as long as Georgian law is not violated. He said
that currently the government is working to establish the
technical mechanisms without violating Georgian legislation.
According to Gvineria, the Georgians have attempted to bring
Turkish experts to the table for over three months to work on
these technical issues without success. He charged the Turks
with trying to raise the level of negotiations by keeping the
discussions at a political level (thereby delaying progress
on technical issues),citing the anticipated February visit
Qof Turkish MFA Deputy Undersecretary Unal Cevikoz as an
example. Gvineria stressed that the only obstacle to a
solution is the lack of engagement from the Turks on the
technical mechanisms.

BLACK SEA OIL EXPLORATIONS


4. (C) Russia continues to pursue a myriad of economic
activities in Abkhazia. An agreement signed on December 24,
2009 between Russian company Rosneft, Abkhaz company
Abkhaztop, Abkhazian de facto ministry of economy and the
company RN-Abkhazia gave Rosneft the right to begin research
and exploration activities to looks for oil and gas on the
Black Sea continental shelf at Gudauta. The Georgian MFA
strongly protested this agreement, citing violation of
international laws, as well as the Law on Occupied
Territories, which imposes restrictions on entrepreneurial
activity in the disputed territories. The agreement is also
in violation of Georgia's Law on Oil and Gas, which states
that oil and gas resources in the territory of Georgia are
considered state property and only the state has exclusive

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right to exploit these resources.

COMMENT: PRESSURE ON GEORGIA NOT ENOUGH


5. (C) Georgia has shown itself responsive to international
concerns over ship seizures in the Black Sea by ceasing those
seizures and entering discussions with Turkey. While it
acknowledges the problematic legal basis of and dangerous
potential for escalation from seizures, Georgia also insists
that its right to govern economic activity throughout its
territory -- including Abkhazia -- be respected. In order to
muster enough political will to achieve a workable system
that satisfies Turkey and enables shipping to Abkhazia --
such as one that includes an amnesty for previous incidents
-- Georgia will likely need reassurance that the
international community also recognizes its concerns about
encroachments on its economic sovereignty.
LOGSDON