Georgia: Problems and Prospects

At a recent talk, Richard Miles, Executive Director, Open World Leadership Center, Washington, D.C.; Chair, Kennan Institute Advisory Council; and former U.S. Ambassador to Georgia, to Bulgaria, and to Azerbaijan, discussed his tenure as Ambassador to Georgia from 2002-2005. Although at the time many in Washington referred to Georgia as a failed state, Miles did not find this to be the case. While Georgia certainly experienced disorder, Miles stated that there was not total chaos, and argued that a better description for Georgia in the year 2002 would have been a "failed government." Miles described how he began his post with the assignment to bring a message of "tough love" to President Eduard Shevernadze, and help make sure that U.S. assistance was being properly channeled. During his tenure as Ambassador to Georgia, Miles witnessed the parliamentary elections of 2003, the tumult of the Rose Revolution, and the mixed results of major reforms. He also served during President George Bush's visit to Georgia in May 2005, the first visit by a U.S. president to any Caucasus state.

While ambassador, Miles focused on several important issues, including anti-terrorist activity, promotion of human rights and religious tolerance, democracy building, and the development of energy infrastructure. One of the most serious problems that Georgia faced during this period was Chechen fighters, accused of terrorism by Russia, taking seasonal refuge in the Pankisi Gorge on the border between Georgia and Chechnya. Following 9/11, the Pankisi Gorge became lumped in the wider war on terrorism and a growing source of tension between Russia and Georgia. Through international assistance, Georgia reasserted control over the Pankisi Gorge, easing a dangerous issue.

Miles stated that there were a number of critical local issues of concern to the U.S. Embassy during that period. When he first came to Georgia, issues of human rights and religious freedoms were growing increasingly disturbing, as non-traditional, evangelical Christian churches were being desecrated, their bibles burned, and their representatives attacked. Much effort went into promoting good inter-confessional relations. On energy, Georgia was involved in the major task of completing the construction of the Baku-Tbilisi-Ceyhan Pipeline, which has now been completed and will soon start operation. At the same time, Miles recounted his struggles with helping a U.S. contractor operate in the Georgian electrical market. On democracy building, much cooperation was received from the OSCE and also a UNDP ambassador's Advisory Group, which was attended by almost every ambassador to Georgia.

According to Miles, the economic reform program of newly elected President Mikheil Saakashvili has brought about many benefits for Georgia, in spite of setbacks. The new government managed to drive up tax revenues, as businesses began to pay back taxes. As a result, all arrears on pensions and civil service salaries were paid. Additionally, a special fund created by international donors helped provide public sector salaries and conduct anti-corruption campaigns. The new government helped reduce violence against religious groups as well. However, although there is still open criticism of the government in the media, Miles stated that there is still a perception of undue influence on the media by the government. Additional difficulties that Georgia faces include the high turnover of ministers, the outbreak of hostilities in South Ossetia, and the suspicious death of Prime Minister Zhvania.

Miles concluded that hope has been restored in Georgia, as evidenced by new businesses, GDP growth, and by the fact that people are returning and now "feel better about the country." Other positive developments include peaceful proposals on South Ossetia, which are being reviewed, and the completion of the Baku-Tbilisi-Ceyhan Pipeline. Georgia's policy of western orientation continues, but with the growing realization that relations with Russia must be maintained and improved. "Transitions are not easy—a lot has been done and a lot remains [to do]," stated Miles. "On balance it was a great pleasure and honor to be the American Ambassador in Georgia for those three really important years in Georgian history and in the history of U.S.-Georgian relations."