Authorities took further steps to align with European Union’s (EU) candidacy status demands and expressed concerns over “illegal” arrests in breakaway Abkhazia.

Georgia and Western actors sought closer cooperation. European Commissioner for Neighbourhood and Enlargement Olivér Várhelyi 15-16 Nov visited Tbilisi, underscoring EU’s interest in strengthening energy and security cooperation; leadership viewed visit as new chapter in Georgia-EU relations. Following trip, parliament 28 Nov paused adoption process for law on de-oligarchisation – one of EU’s demands as precondition for candidate status – to hear suggestions from Council of Europe’s Venice Commission amid pressure from EU officials; EU 28 Nov welcomed decision, saying it is “important to consult international standard setters and implement their recommendations”. Meanwhile, NATO Sec Gen Jens Stoltenberg 21 Nov called for “more support” from Western defence alliance to Georgia, which he said is “vulnerable” to “Russian coercion and aggression”; NATO Allies 30 Nov agreed to “step up tailored support” to Georgia.

De facto authorities in breakaway Abkhazia detained more Georgian citizens. De facto security service 4 Nov detained Asmat Tavadze in Gali district on charges of illegal drug purchase and storage; de facto authorities also reported seizing Georgian flag and other Georgian state symbols found in her apartment. Georgia 5 Nov condemned de facto Abkhaz security forces for illegal detention and said “work was underway to release” her. Tbilisi 8 Nov announced another arrest of Georgian citizen in same area with similar charges.

After months-long pause, international forum to discuss consequences of 2008 Russo-Georgian war held.

New round of Geneva International Discussions held in Switzerland. After pause of nearly one year due to international tensions over Russian invasion of Ukraine (see Ukraine), 56th round of Geneva International Discussions – multilateral forum to address security and humanitarian consequences of 2008 Russo-Georgian War –held 5 Oct in Switzerland’s Palais des Nations. Deputy FM Lasha Darsalia 5 Oct described negotiation process as “particularly difficult” given “rather complicated security environment around us”. EU Special Representative Toivo Klaar same day commended “very useful” exchange of views, noting everyone was “committed” to continuing work in Geneva format.

In other important developments. EU Council 12 Oct announced plan on non-acceptance of Russian travel documents issued in breakaway Abkhazia and South Ossetia, as well as Russian-occupied territories of Ukraine; said decision was in “response to Russia’s unprovoked and unjustified military aggression against Ukraine and Russia’s practice of issuing Russian international passports to residents of the occupied regions”.

Debate over potential military operation in breakaway territories prompted pushback, Belarusian president travelled to Abkhazia to strengthen cooperation, and authorities curtailed political freedoms.

Opposition raised idea of “military operation” in breakaway territories, ruling party rejected it. Russian losses in Ukraine during Sept (see Ukraine) raised tensions between ruling Georgian Dream party and several opposition leaders after latter mid Sept said country should capitalise on Russia’s weakened position and launch military operation in Abkhazia and South Ossetia breakaway territories. Ruling party Chairman Irakli Kobakhidze 7 Sept had rejected idea of opening “second front” against Russia (Russia recognises breakaways as independent states and is responsible for providing military support and security to both entities) but floated idea of referendum on issue. In response, Abkhazia’s de facto FM Inal Ardzinba 15 Sept organised public discussion with local representatives to voice concerns about “forces aimed at diverting Russia’s military and economic resources away from Donbas”; also drew attention to Georgia’s military exercises with NATO, saying likelihood of Georgia initiating military operation in Abkhazia was “quite high”, pointing to Kobakhidze’s referendum suggestion; Kobakhidze same day denied plans for war were being considered.

Belarusian President Lukashenko visited Abkhazia for first time since taking office. In first visit to breakaway territory as president, Lukashenko 28 Sept met with Abkhazia’s de facto leader Aslan Bzhania and other senior officials in Bichvinta town to discuss bilateral cooperation and international security. Lukashenko said “we must strengthen relations with friends” otherwise “we will not be allowed to live in peace”, but stopped short of explicitly promising recognition.

Authorities passed laws restricting freedoms, compromising prospects for EU candidacy status. Amendments to first law, adopted 6 Sept, strengthen security service’s ability to use covert surveillance measures on civilians; President Salome Zourabichvili had vetoed bill in June and 1 Sept reiterated that it was “not in line with securing human rights”. Amendments to second law, adopted 9 Sept, modified selection rules for public defender, reducing opposition’s influence over candidate’s selection. Amendments, which followed EU’s June decision to condition candidate status on fulfilling “outstanding priorities” regarding political polarisation, judicial system, human rights and anti-corruption, appeared to challenge prospects for candidacy status.

Breakaway South Ossetia reopened crossing points with Georgia proper after three years, tensions with U.S. ambassador persisted, and EU published review of govt’s progress on reforms needed for accession. De facto South Ossetia security council 18 Aug decided to resume functioning of key crossings points with Georgia proper from 20-30 of each month using special passes; crossing points had been largely closed for almost three years following tensions over Tbilisi’s decision in 2019 to install police outpost near South Ossetian village of Tsnelisi at line that separates entity from rest of Georgia. Georgian security service and EU monitoring mission 19, 22 Aug respectively praised opening of crossings, which remain vital for ethnic Georgians living in South Ossetia. New de facto President of South Ossetia Alan Gagloev continued new govt appointments; notably, 15 Aug named Akhsar Jioev de facto foreign minister; 23 Aug named former Russian military serviceman Marat Pavlov de facto defence minister. Tensions with U.S. persisted as Georgia’s ruling party and its political allies continued verbal exchanges with U.S. Ambassador Kelly Degnan over former’s accusations that Western countries wanted “to drag” Georgia into war with Russia; also accused Degnan and other U.S., EU diplomats of supporting opposition; notably, in statement published 11 Aug, four MPs allied with ruling party accused Degnan of backing “the radical agenda of the radical opposition”. EU 13 Aug released Association Agreement implementation report, reviewing Georgia’s implementation of reforms needed for EU accession. Report complimented country’s progress toward closer economic integration but criticised its poor handling of 2021 local elections and other issues that “threaten to undermine the country’s democratic foundations”. Ruling party 30 Aug accused opposition of trying “their best to sabotage” implementation of EU conditions for candidate status. Syrian FM Faisal Mekdad visited breakaway Abkhazia 24-25 Aug, met with de facto president Aslan Bzhania, saying Abkhazia “relies on Syria's support to expand contacts with Middle East countries that maintain friendly relations with Syria”; Mekdad promised to work to further develop relations with Abkhazia.

EU accession roadmap sparked fierce political debate, while tensions rose between ruling Georgian Dream party and U.S., EU. Since EU member states conditioned Georgia’s candidate status on fulfilling “outstanding priorities” in June, country’s leadership, opposition and civil society failed to agree on path forward, particularly with regard to electoral reform and “de-oligarchisation”. Ruling Georgian Dream party 1 July presented plan, listing new commissions and existing ministries responsible for reforms, along with timeline; group of civil society organisations 3 July released its own plan. Many opposition politicians and president 11 July voiced concerns about leadership’s readiness to initiate genuine process that might satisfy EU demands. Several leading civil society organisations 12 July declared readiness to support ruling party, while president with support of remaining opposition 15 July signed decree initiating special parliamentary session for debates on fulfilling recommendations; ruling party 18 July promised to boycott session. Several opposition parties 25 July initiated working process on recommendations in parallel to discussions led by ruling party. Tensions with U.S. and EU rose during month. After several parliamentarians late June accused U.S. Ambassador Kelly Degnan of attempting to involve Georgia in war with Russia, Degnan 8 July dismissed claim as “conspiracy theories”. Head of ruling party Irakli Kobakhidze 9 July accused Degnan of “regrettable, offensive” remarks; U.S. State Dept 20 July condemned attacks on Degnan and embassy. In rare public statement, founder of ruling party and former PM Bidzina Ivanishvili 27 July echoed claims that “certain forces” were attempting to “drag Georgia” into war and also confirmed meeting with Degnan late March, which she previously denied; Degnan same day asserted there was “never any talk about Georgia’s involvement” in war. Pushing back on EU demands for “de-oligarchisation”, which ruling party sees as attempt to undermine Ivanishvili, PM Irakli Gharibashvili 18 July published letter to European Commission President Ursula von der Leyen blaming European Parliament for “factual inaccuracies” about Ivanishvili. Adding to criticism, Kobakhidze 20 July said outgoing EU Ambassador Carl Harzell “played only a negative role in EU-Georgia relations”; EU 21 July said govt was “blaming others for own unfulfilled ambitions”.

European leaders recognised country’s European “perspective” and conditioned candidacy status on reforms amid largest pro-EU rallies in decades. Following 3 March EU membership bid in response to Russia’s war in Ukraine, EU member states 23 June recognised Georgia’s “European perspective”, conditioned candidate status on fulfilling “outstanding priorities” regarding political polarisation, judicial system, human rights and anti-corruption as per European Commission’s recommendation announced 17 June; PM Gharibashvili same day confirmed readiness “to implement all priorities”. Decision came as disappointment to many in capital Tbilisi, although not surprise; ahead of vote, European Parliament 9 June adopted critical resolution on Georgia, citing concerns about media and political environment. Gharibashvili 11 June said resolution was “full of lies” and “insulting”. Several Georgian NGOs 12 June criticised Gharibashvili in joint statement, saying he was downplaying importance of candidate status, which could feed into “Eurosceptic attitudes” and which echoed “Russian narratives”. President Zourabichvili 16 June tried mobilising public, all political parties and EU ambassadors to pro-Europe rally in Tbilisi; turnout was poor. Yet more than 100,000 people 20 June rallied in Tbilisi in support of candidacy status decision in Belgian capital Brussels, chanting: “I am Georgian, and therefore I am European”; demonstration was one of largest in country’s 31 years of independence.

Political tensions over war in Ukraine remained elevated, notably in breakaway South Ossetia, where de facto govt scheduled and then postponed referendum on accession to Russia. Political situation throughout month remained tense as opposition continued to accuse leadership of not showing sufficient support to Ukraine, including by aligning more with Western allies on key positions related to Russia’s invasion. Tbilisi city court 16 May sentenced head of opposition TV channel Nika Gvaramia to three-and-a-half years imprisonment for abuse of power; Gvaramia rejected all charges as politically motivated. Local NGOs same day said bail or other softer punishment could replace prison term, while international human rights groups Amnesty International and Human Rights Watch same day voiced concerns about ruling. In breakaway republic South Ossetia, following his defeat in second round of presidential elections 8 May, de facto President Anatoly Bibilov 14 May signed decree to hold referendum on joining Russia on 17 July. Election winner Alan Gagloev, who was inaugurated 24 May, reportedly learned about referendum from media reports; Gagloev can postpone vote for three months, but not recall decree. Gagloev 30 May issued decree that postpones referendum until consultations with Moscow are finalised; some senior Russian officials and important politicians during month publicly opposed referendum due to risks of destabilising Russia’s relations with Georgia. Situation along lines of separation with South Ossetia and breakaway Abkhazia remained calm; no reports during month of detentions or fence construction along lines of separation. Co-chairs of the Geneva International Discussions, UN Representative Cihan Sultanoğlu, Special Representative of Organization for Security and Co-operation in Europe (OSCE) Chairperson-in-Office Viorel Moșanu, and EU Special Representative Toivo Klaar 30 May began trip to region; visit follows cancelled March talks and accusations from Russian diplomats late April that West was blocking Geneva discussions.

Breakaway South Ossetia’s de facto leader, who has called for accession to Russia, competed in first round of presidential elections. Following late March announcement by de facto leader of breakaway South Ossetia Anatoly Bibilov of intention to join Russia after April de facto presidential elections, Georgian leaders raised concern over possible Russian annexation of breakaway South Ossetia. At first round of de facto presidential election in breakaway territory, opposition leader Alan Gagloyev 10 April came in first with 38%; Bibilov came in second with 34.95%. Run-off vote was supposed to be held on 28 April but de facto central electoral commission rescheduled it for 8 May. Gagloyev 18 April met Kremlin official in Russia’s capital Moscow ahead of run-off election. Meanwhile, Abkhaz authorities and leaders maintained insistence on independence of de facto state in contrast to South Ossetia’s de facto leadership; however, Abkhaz de facto opposition Patriotic Movement and some Russian politicians during month maintained that Abkhaz accession to Russian Federation remained possible. After de facto parliamentary elections in breakaway Abkhazia in March, de facto parliament 11 April elected Lasha Ashuba as speaker. State Security Service 18 April declared release of Georgian citizen Vladimer Kaniashvili, formerly detained in breakaway South Ossetia in Dec 2021. Meanwhile, family of imprisoned former President Mikheil Saakashvili late month demanded authorities permit Saakashvili to obtain urgent medical treatment in foreign country; family warned of protests if request not met by 2 May. Over dozen NGOs 28 April called for govt to ensure Saakashvili receives adequate medical treatment.

Georgians mobilised in support of Ukraine, as govt’s cautious stance on war provoked public anger and strained relations with President Zourabichvili. Since outbreak of war in Ukraine in late Feb, almost all segments of society vocalised support for and solidarity with Ukraine, including by collecting humanitarian aid, donating blood, raising funds for Ukrainian troops and providing essential services to refugees. Dozens of former military figures, including former defence minister, reportedly joined Ukrainian troops in defending country. Authorities 7 March reported arrival in country of over 30,000 Russians amid exodus following unprecedented Western sanctions; however, less than half stayed in country possibly due to discrimination and pressure from citizens and businesses. All banks introduced restrictions on transactions with Russia despite govt’s late Feb refusal to join Western sanctions. Govt’s refusal to criticise Russia for Ukraine’s invasion continued to fuel public anger. Statements from ruling Georgian Dream party, including that govt would not join Western sanctions, revived speculation about party’s pro-Russian stance; anti-govt protests, some numbering tens of thousands in front of parliament in capital Tbilisi, which started in late Feb continued throughout March. Govt’s stance also fuelled tensions between ruling party and President Zourabichvili. During 4 March address to parliament, Zourabichvili confirmed recent trips to Europe to meet French and EU presidents, noted it was first time ever she was so bluntly rebuffed by senior leadership in request for support; in response, leaders of Georgian Dream threatened to launch investigation on grounds that president is obliged to act in coordination with govt. FM David Zalkaliani 28 March announced start of European Commission’s consideration of Georgia’s EU membership bid. Meanwhile, International Criminal Court 10 March released arrest warrants for three high-level former de facto South Ossetian officials for crimes during 2008 war. De facto Abkhazia entity 12, 26 March held election for de facto parliament.

Georgians demonstrated in support of Ukraine following Russian invasion, while breakaway Abkhazia and South Ossetia expressed hope for recognition by Belarus. Parliament 1 Feb adopted resolution in support of Ukraine amid Russia’s military build-up around country (see Ukraine); resolution did not label Russia “aggressor” as demanded by opposition MPs. Following Russian invasion of Ukraine on 24 Feb, thousands of Georgians protested in solidarity with Ukraine. Protests increased after 25 Feb remarks of Georgian PM Irakli Gharibashvili about non-alliance with Western sanctions against Russia. Abkhazia 25 Feb announced its recognition of Donetsk and Luhansk People’s Republics, Ukraine’s breakaway regions. After Tbilisi City Court in Jan convicted founders of political party Lelo for fraud, parliament 15 Feb terminated mandates of three opposition parliamentarians, leaving Lelo party without leader at legislature. Belarusian President Lukashenko 6 Feb indicated possibility of recognising independence of breakaway states of Abkhazia and South Ossetia “as soon as I see [the need]”. Abkhazia’s de facto foreign ministry 8 Feb declared interest “in establishing official contacts with the Republic of Belarus”, while South Ossetia’s de facto leader Anatoly Bibilov 12 Feb argued “in moral terms, Belarus can recognize us”. Georgia’s foreign ministry 8 Feb insisted that “Belarus is committed to the fundamental principles of international law” and that such recognition “is not on the agenda”. De facto ruling party One Ossetia in breakaway South Ossetia 8 Feb nominated incumbent Anatoly Bibilov as candidate for April’s de facto presidential elections; Bibilov 26 Feb dismissed Defence Minister Ibragim Gassiyev for supporting opposition candidates in upcoming elections.