National Defence Academy, Ebnöther (2004)

209 Pages·2008·1.04 MB·English

LANDESVERTEIDIGUNGSAKADEMIE
Security Sector
Governance in
Southern Caucasus –
Challenges and Visions
PfP Consortium of Defence Academies and
Security Studies Institutes
Study Groups
Regional Stability in Southern Caucasus
Security Sector Reform
Vienna and Geneva, February 2004
Publishers:
National Defence Academy,
Institute for Peace Support and Conflict Management,
Bureau of Security Policy of the Federal Ministry of Defence, Vienna,
Geneva Centre for the Democratic Control of Armed Forces, Geneva
in co-operation with
PfP-Consortium of Defence Academies and Security Studies Institutes
Editors:
Anja H. Ebn(cid:246)ther
BG Gustav E. Gustenau
Managing Editors:
Capt Ernst M. Felberbauer
Silvia Hyka
Martin Malek
Facilitating Editors:
Karin Schlagnitweit
Johannes Raidl
Production:
Akademiedruckerei Landesverteidigungsakademie,
Vienna.
Address:
Stiftgasse 2a, 1070 Vienna, AUSTRIA
ISBN: 3-901328-96-3
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CONTENTS
Anja H. Ebnoether
Introduction 6
Philipp Fluri
Preface 10
Peter Forster
The Paradox of Policy: American Interests in
the Post-9/11 Caucasus 12
Dov Lynch
Security Sector Governance in the Southern Caucaus (cid:150)
Towards an EU Strategy 34
Duncan Hiscock
The Role of Civil Society in Security Sector Governance
in the South Caucasus 58
David Darchiashvili
Georgian Security Sector: Achievements and Failures 84
Antje Fritz
Status Report on Security Sector Governance in Georgia 116
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Aram Harutyunyan
Armenia as a Factor of Balance in theSouthern
Caucasus Region 166
Elkhan Mehtyiev
Perspectives of Security Development in
the South Caucasus 180
S. Neil MacFarlane
Visions of the Caucasus 192
Irakli Mchedlishvili
Visions and Aims for Security Sector Governance
in Southern Caucasus 202
Gayane Novikova
Security Sector Governance in the South Caucasus:
Visions and Aims 204
Elkhan Nuryiev
The Southern Caucasus: in Quest of a New Vision for a
Cooperative Security Strategy 208
About the authors 210
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Anja H. Ebnoether
INTRODUCTION
The present study was conceptually embedded in the Partnership for
Peace Consortium of Defence Academies and Security Studies Institutes
(PfP C). It is the outcome of a close cooperation between the PfP C
Track on (cid:147)Security Sector Reform(cid:148) and the (cid:147)Regional Stability Track(cid:148).
It is also part of the cooperation agreement between DCAF and the
National Defence Academy.
This publication is the result of the first of two joint workshops between
the two tracks with the participation of the PfP-C Security Sector
Reform Working Group and the Regional Stability South Caucasus
Study Group. The meeting took place in November 2003 in Reichenau,
Austria, hosted by the Austrian Ministry of Defense (represented by the
National Defense Academy and the Bureau for Security Policy).
The book reflects the excellent possibilities and opportunities the
Consortium provides for interdisciplinary, comparative and cross-
country studies. It shows how unconventional ideas and new initiatives
can be tested without immediately having major political impacts. This
is what makes the PfP Consortium so unique and deserves our support
and attention.
Under the new PfP Consortium governance structure1 the combination
of a regionally oriented SG (Regional Stability Southern Caucasus) and
a topic focussed WG (Security Sector Reform) was a (cid:147)first(cid:148) for the PfP
C. The initiative was taken on the one side by the Security Sector
Reform Working Group in order to start a stock-taking process regarding
the status of the security sector in the Southern Caucasus countries (cid:150) and
on the other side by the co-ordinator of the Regional Stability Track who
wished to re-launch Consortium activities in the region, as the existing
Study Group had been inactive for the past year.

1 see www.pfpconsortium.org for more information
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Joint meetings are, regarding the nature of Consortium activities, not the
rule, but the exception. Nevertheless, they open a wide range of
opportunities (cid:150) combinations of different approaches, have a wider set of
experts contribute, launch new initiatives, define a topic to be dealt with
from different angles and have side-meetings.
Work in Progress
On the one hand, recent elections in Armenia (May 2003), Azerbaijan
(October 2003) and Georgia (November 2003) showed quite clearly the
lack of democracy in those three countries. It is hoped that the velvet
revolution in Georgia, culminating eventually in the step down of
President Shevardnadze in Tbilisi, will have a positive impact on its
neighbouring countries and also launch a more intense dialogue on a
regional level. The political situation in those countries is still unstable,
but the development in Georgia could be a signal to the better for the
region.
On the other hand, one of the consequences of the NATO- and EU
enlargement rounds is the question about the future of the Partnership
for Peace programme and, ultimately, the PfP Consortium. The NATO
Summit in Prague and the EU summit in Copenhagen in late 2002
shifted the political focus towards the Caucasus and Central Asia, thus
towards the future borders of a unified Europe.
Objectives
This meeting was an initiative to re-vitalise activities in a region which
has been mentioned as essential for the PfP in the future. The objectives
were “to assess the situation in the Caucasus Region through enhanced
international cooperation and strategic research on an academic level.
The main focus is to elaborate major problem areas and work on
possible solutions”. To that end experts from all three republics and
from two of the three unrecognized entities participated. The meeting
had a pre-set agenda which helped to identify future experts and gave an
evaluation of the actual situation in the region.
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Due to the particularity of this region with three secessionist republics
and conflicting relations with each other and the neighbouring states
Iran, Turkey and Russia, much accent was given to conflict settlement
and the conditions under which stable and lasting relationships could be
established. These are problems encountered not only in the Caucasus,
but also in other post-soviet republics and possible lessons learned might
be transferred.
The threat perception in the region varies significantly. One of the first
main findings of the meeting was that the presence of foreign military
personnel is a very controversial subject with some states depending
heavily on foreign armed forces on their territory and others regarding
those very forces as a source of tension and a danger for their security.
For some country foreign military presence is also a security guarantee
toward a third country, with which conflicts are not settled yet fully.
This shows once more that not only armed forces are part of the security
sector, but also that it is multi-faceted.
Questions Raised
The seminar addressed a set of preliminary questions in order to carry
out a modest stocktaking: where do they stand in security sector
governance? Who are their allies and what is their political influence?
What is the level of international and regional co-operation? How are the
border guards organised? To whom do the police report to? What is the
role of intelligence services? How well do parliamentarians know their
role when taking decisions over the security system? How do those
countries define their relationship with NATO and EU and how are
those relations reflected in their security policy, what are the steps taken
to bridge a possible gap? What are the problems those governments
encounter when reforming their security sector? Is there something
similar to a (cid:147)Membership Action Plan(cid:148) for these countries, or are new
developments pending?
What kind of stability is needed? If the existing stability is based on
international stability, then there is no stability. The past has shown
often enough that the international attention might shift rather quickly to
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another hot-spot in the world, a development described by one speaker
as the (cid:145)Caucasus fatigue(cid:146). Therefore, the reforms must be firmly rooted
in the countries themselves, supported by the population and the
government.
From the point of view of (cid:147)regional stability(cid:148) the workshop was a
success; all parties invited being present and discussing the given topics.
However, too often political statements drew the attention away from the
academic debate about Security Sector Governance. But one had to be
clear from the beginning as to not expect too much from the seminar,
despite the experts present.
This meeting was certainly a very promising start to develop a set of
activities in/for the region, which over time might integrate from a pure
regional standpoint into a more topical approach.
Anja H. Ebn(cid:246)ther
Geneva Centre for the Democratic Control of Armed Forces (DCAF)
Geneva
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Dr Philipp Fluri
PREFACE
Democratic institution building in and democratic governance of the
security sector continue to pose challenges to all governments which
have emerged from the former Soviet Union. Sustainable
democratization presupposes not only a general willingness and
informedness, but also operational knowledge which can only come
from democratic practice.
It was with great enthusiasm that the Geneva Centre for the Democratic
Control of Armed Forces (DCAF) coordinated PfP Consortium Working
Group on Security Sector Governance accepted the challenge to
cooperate on the Reichenau (Austria) conference which led to this
volume. Scholars and practitioners from the Caucasus and on the
Caucasus united to contribute to this publication from the perspectives of
their individual specializations.
The organizers and participants were well aware of the fact that they
were in for an experiment. Security Sector Governance had not been
much of a catchword in a region for which lagging reforms seemed to be
a trademark.
The organizers and participants were certainly positively surprised by
the how constructive discussions were, and by how cooperative
participants showed themselves. Whoever has the experience of
attending and/or organising conferences on regional security in the
Caucasus will have gone through excruciating reading of prepared texts,
and endless discussions of who did what to whom during the last 4(cid:146)000
years (cid:150) and who would deny that the Caucasus is a region which has
seen violence? The Reichenau conference participants however accepted
the challenge to introduce security sector reform efforts, successes and
failures in their home countries and territories to representatives of a
well-informed, interested and compassionate international community.
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