My Special Envoy for Georgia, Mr. Edouard Brunner, supported by the Russian Federation as facilitator and the Organization for Security and Cooperation in Europe as participant, has continued his efforts to achieve a comprehensive settlement of the conflict, particularly in identifying a political status for Abkhazia acceptable to both the Georgian and Abkhaz sides. He has visited the region and chaired several rounds of negotiations and expert talks. I visited the Republic of Georgia from 31 October to 2 November 1994 in order to explore with the Head of State, Mr. Eduard Shevardnadze, and other Georgian Government officials how the political process could be advanced. I have also offered to assist by meeting either separately or jointly with the leaders of the two sides. The Russian Federation, acting in its capacity as facilitator, made intensive efforts in 1995 to reach agreement on a draft protocol that might provide the basis for a Georgian-Abkhaz settlement. Unfortunately, all these efforts have resulted in little political progress to date.
A significant gap remains between the two sides regarding the political status of Abkhazia within the territorial integrity of Georgia. Abkhazia's Constitution, which was promulgated by the Supreme Soviet of Abkhazia on 26 November 1994, declares Abkhazia to be a "sovereign democratic State . . .". Such constitutional arrangements are unacceptable to the Georgian side, which insists on preserving its territorial integrity. The Government of Georgia proposes to establish a federation for Georgia within which Abkhazia would be granted a wide degree of autonomy.
Assuming that it is possible to find agreement on a draft protocol now under discussion, a prolonged period of detailed negotiations will have to follow in order to agree on ways to implement a settlement. Such negotiations will require continuous attention in situ. I have therefore decided to appoint a deputy to my Special Envoy, who will be resident in the area and thus able to provide a continuous presence at a senior political level. Following the precedent of other operations, such as those in Cyprus and Tajikistan, the Deputy will also be the head of the United Nations Observer Mission in Georgia (UNOMIG). In carrying out the tasks of political contact and negotiation, the Deputy will divide his time between Tbilisi and Sukhumi and will travel as necessary to Moscow for direct consultations with the Russian authorities.
UNOMIG has been fulfilling the tasks mandated by the Security Council in resolution 937 (1994) of 21 July 1994. It maintains its headquarters at Sukhumi, but because of the unavailability of suitable accommodation in that city, part of the Mission's headquarters staff is now stationed in Pitsunda. The Mission also has a liaison office in Tbilisi and three sector headquarters -- at Sukhimi, Gali and Zugdidi. In addition, UNOMIG has six team site bases: three in the Gali region, two in the Zugdidi region and one in the Kodori Valley.
The Government of Georgia and the Abkhaz authorities have largely complied with the agreement of 14 May 1994 on a cease-fire and separation of forces. All armed forces have been withdrawn from the security zone, although a few pieces of non-operational heavy military equipment remain in the restricted weapons zone.
The situation in the security and restricted weapons zones, especially in the Gali region, has been tense. One of the most pressing problems in the security zone has been the presence on both sides of unauthorized weapons among the population, and among some of the Abkhaz militia, as well as the Georgian police. In addition, armed elements beyond the control of either the Government of Georgia or the Abkhaz authorities have been responsible for criminal activities in the Gali region. The situation in the Kodori Valley, which had been tense towards the end of 1994, has now calmed down. The relations on the ground between the Abkhaz and the Svan have been satisfactory, with a slow but steady build-up of mutual confidence.
UNOMIG has reported that the Commonwealth of Independent States (CIS) peace-keeping force has been conducting its operations within the framework of the agreement of May 1994, and any variation from the tasks set out in the agreement has been made in consultation with the parties. Cooperation between UNOMIG and the CIS peace-keeping force has been very productive. Cooperation between UNOMIG and the Government of Georgia and the Abkhaz authorities has also been satisfactory. Through its liaison office in Tbilisi, UNOMIG has been cooperating with OSCE.
In pursuance of paragraph 10 of Security Council resolution 937 (1994), I have established a voluntary fund for contributions in support of the implementation of the agreement of 14 May 1994 for humanitarian aspects including demining, as specified by the donors, which will facilitate the implementation of UNOMIG's mandate. One pledge has been made so far.
At independence, the people of Georgia had one of the highest standards of living among the republics of the former Soviet Union. Today, the country is racked by political instability, civil strife on two fronts and the displacement of some 270,000 people. Lack of foreign exchange for essential inputs, such as fuel, and hyper-inflation have devastated the economy. Agricultural production contracted in 1994 for the fourth year in succession. In the break-away region of Abkhazia, some 75 per cent of the original inhabitants have reportedly fled civil conflict into other parts of Georgia and the area remains the scene of extensive destruction. In some areas, large numbers of mines have been laid and roads are impassable.
Of all the difficulties currently facing Georgia, the most immediate are the scarcity of basic foods and the critical energy supply situation. After several years of huge budget deficits, the Government lacks the resources to ensure the continued provision of basic social services. Many primary health-care units and hospitals are unable to function because of shortages of medicines and equipment. Health care is now almost entirely dependent on international humanitarian assistance.
In addition, large numbers of orphans, abandoned children and people in need of special education are currently living in extremely poor circumstances because of reduced government spending. Most lack adequate food, bedding, warm clothes and learning materials. As in the neighbouring Caucasus republics, textbooks and school materials are in short supply and many school buildings urgently need rehabilitation.
There has also been little progress in the return of refugees and displaced persons to Abkhazia. Though voluntary repatriation under UNHCR auspices commenced in mid-October 1994, movement as at December 1994 of a mere 311 persons out of an estimated total 250,000 refugees and displaced persons has been very disappointing. Since the end of November 1994, formal repatriation has virtually halted, and the Quadripartite Commission has not met since 16 February 1995. About 20,000 persons have returned spontaneously to the Gali district.
The Abkhaz side continues to object to the large-scale and speedy return of refugees and displaced persons. Its offer of 17 April 1995 to repatriate 200 persons a week and to be more flexible with regard to those refugees and displaced persons returning spontaneously does not meet UNHCR requirements for a meaningful timetable. The continued delay in resettling internally displaced persons to Abkhazia has placed a heavy burden on the economy of Georgia, weakening its capacity to recover and exacerbating social and political tensions. The Abkhaz side continues to link progress on the question of refugees to progress on political issues. The authorities are withholding thousands of other applications and have refused to process further requests owing to a stalling of the peace negotiations on both sides.
As part of its efforts to move from a centrally planned to a market economy, the Georgian Government is taking steps towards economic reform. The task of transferring the State-run economy into private hands is daunting and has, in itself, inflicted severe social and economic hardship. In 1994, subsidies for important staples were progressively removed, resulting in price increases. Further liberalization of prices for most commodities will be progressively instituted during 1995. Although the minimum wage and pensions have also been increased, these reforms cannot keep pace with rising inflation.
In the light of these problems, the Department of Humanitarian Affairs led an inter-agency mission to Georgia in February 1995, for the second consecutive year, to assess the needs of the country and formulate an inter-agency consolidated appeal for the Caucasus, including Georgia, and covering the period from 1 April 1995 to 31 March 1996. That appeal was launched at Geneva on 23 March 1995. Activities covered in the appeal include relief projects to be undertaken by United Nations agencies/programmes and non-governmental organizations in the food, non-food, shelter and health sectors, as well as projects aimed at strengthening the country's self-reliance in a post-emergency phase.
On 19 May 1995, the Quadripartite Commission convened in Moscow to explore once again the possibilities for resuming the voluntary repatriation programme under the auspices of the Office of the United Nations High Commissioner for Refugees. Representatives of UNHCR presented a concrete timetable for such returns, under which the displaced population from the Gali district would have returned before the end of 1995. Despite strenuous efforts to obtain a more flexible response, the Abkhaz side maintained its previous position of April 1995 of allowing only 200 persons per week to return. This continues to be unacceptable to the other parties.
Minor improvements to security conditions in the Gali district have resulted in increased daily movements back and forth across the Inguri River by displaced persons, primarily to the lower security zone, to work in the fields, trade or repair houses. Some of these persons have decided to stay in the Gali district as long as security does not again deteriorate. The size of the semi-resident population is estimated at 25,000 to 35,000 persons. However, large numbers continue to live in difficult circumstances, placing great strain on the Georgian economy, on human relations and on local services. In these circumstances, the level of frustration and distress is very high, leading to calls for mass spontaneous repatriation.
As of July 1995, $9.4 million, representing 25.7 per cent of funding requirements for Georgia, had been contributed to the appeal, as reported to the Department of Humanitarian Affairs by agencies making the appeal. A mid-term review of the appeal will be launched in late August 1995, to review both the implementation of the projects presented in the appeal and the funding situation, and to present plans for the continuation of activities until the end of the appeal period.
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