Implementation Reforms in the Defence and Security Sector of Georgia and future perspectives of the further Integration to the Euro-Atlantic Structures

By: Nika Chitadze Ph.D.

Director of the Center for International Studies

International Black Sea University

Introduction

Protecting Georgia’s sovereignty and independence and ensuring its peaceful development represents the most important mission of the Georgian Armed Forces (GAF). Georgia needs balanced, adaptable, sustainable and mobile Armed Forces capable of adequately responding to existing threats and direct military aggression, contributing to international stability and supporting the government during natural and man-made disasters.

                   

Total Defence Concept

Many reforms have been carried out by the Ministry of Defense of Georgia within the last several years. Notably, the ministry with other appropriate institutions has started the implementation of the Total Defense concept.

Thus, it was established a new policy, which means the development of Strategic Readiness. The aim of Strategic Readiness in the field of Defense is the development of territorial defense capabilities and increase of interoperability with NATO Standards, so that Georgia will be permanently ready for NATO membership.

Georgia`s defense policy is based on deterrence and defence principles, providing of which depends on the resilience of country and implies its ability to cope with the crisis on time and maintain the sustainability of its vital functions and services. Accordingly, the success in deterrence and defense of country depends on the establishment of Total Defense system and strengthening international cooperation.  

In order to implement the aforementioned, based on the Ministry of Defence of Georgia`s Initiative and guidance, within the frames of the Defence Policy Planning Coordination Permanent inter-agency State Commission, the National Defence long-term Strategy is being developed that is planned to be concluded by the first quarter of 2019.

“The National Defense Strategy 2020-2030” is a national-level conceptual document, which unlike its predecessor determines the objectives of the agencies involved in country`s defence based on the Total Defence Principles.

With the establishment of the Total Defense system, the Defense Forces, state agencies and society will share the duties and responsibilities and help the defence system to concentrate on its objectives and effectively allocate forces.

On this direction, some important reforms and initiatives have been implemented:

First of all it should be noted about ambitious program – the Georgian Defence Readiness Program (GDRP) that involves two components: GDRP – T – Training and GDRP – I Institutional Development. Accordingly, the Program, as a whole, provides both – rising combat readiness of the tactical level units and sustainable institutional capacity development for manning, training, equipping and force maintenance.

In the beginning of 2017, the institutional component of the Georgian Defence Readiness Program was started, while in May, 2018, it was launched the part of 3-year long training. Within GDRP, in total 9 battalions will be manned, equipped and trained with the help of U,S. instructors. This will increase the capabilities of Georgian Armed Forces and its interoperability with NATO standards. The 43-rd Battalion – the first unit involved in the program concluded 4-month training with the highest evaluation.

Also, an important component in strengthening country`s defence capabilities and achieving strategic readiness is the obtaining of modern military equipment of the Georgian Armed Forces.

As a result of Georgia`s reforms, Georgia meets NATO standards and today, the expenditure on personnel from defence budget amounts to 53% and the expenditure on arms has exceeded 20% of the defence budget.

So, Georgia is moving towards long-term planning. The National Defense Strategy will be a ten-year document. Meanwhile, Ministry of Defence already developed a strategy of procurement, which determines the main directions of long-term procurement of weapons systems within the process of defence modernization in 2019-2025.

Country has focused on the purchase of anti-tank and air-defence systems, as well as on developing engineering, artillery and intelligence directions and modernization of aviation. Georgia acquired the Javelin anti-tank missile system from the United States. Also, it is going on the process of equipping the Georgian Armed Forces with French air defence equipment. Important steps have been made in the development of aviation.

Furthermore, it should be mentioned, that Total Defence, in its essence, involves multiple aspects. Georgia has launched a pilot project for the military reserve for the strengthening the defence capabilities. Country has a special focus on hybrid threats and the ways to counter them.

New program of reserve and mobilization

The application process for participation in the pilot Territorial Reserve program in the regions of Guria, Adjara and Kakheti and in the Specialists Reserve started on August 1, 2018. Within the program MoD has accepted 228 reservists, in the Territorial Reserve and 8 specialists in the Specialists Reserve.   

In October, training of the first group of reservists started at the Adlia and Telavi bases. The program will be continued. In 2018 it was established a coordination group tasked to develop a ten-year strategy regarding the reserve and mobilization system.

The program is based on the experience of NATO member and partner countries and is fully tailored to the needs and reality of Georgia.

Hybrid methods of Russia against Georgia and preventing measures

Hybrid threats are one of the important concerns not only for Georgia but for the NATO countries as well. Alliance countries cope with this threats by strengthening their resilience. Developing of total defence is especially important for small countries, since total Defence is aimed to neutralize hybrid threats.

In this way, alongside strengthening the readiness of Georgia, country pays serious attention to the development of civil-military cooperation, since the defence of Georgia is the duty of both military and civil society.

For this reason, more active communication is undergoing with society by means of projects like the establishment of a public Affairs Officer institutions in the armed forces, development of communication channels and active communication with national minorities.  On this issue, the MoD issues the newspaper of the ministry in three languages.

Georgia periodically conducts the “Noble Response” exercise, with its one of the main objectives being to inform journalists about hybrid threats.

In response to hybrid threats, another priority of great importance is cyber security. Particularly, the year 2019 has been announced as cyber security year in the Georgian Armed Forces, which means active cyber involvement in military operations and more cyber actions on national and international level.

International cooperation

Cooperation with the United States

Georgia and the United States enjoy a rich and comprehensive partnership. While the United States recognized Georgia’s independence in 1992, defence cooperation began to strengthen when Georgia became a partner in combating terrorism in September 2001.

Development of Georgia-U.S. Bilateral Cooperation

In 2002 the United States initiated the Georgia Train and Equip Program (GTEP) which provided Georgia’s security services with assistance in securing internal terrorism threats from rebels in the lawless, mountainous border region of the Pankisi Gorge.

In 2005 GTEP evolved into the Georgian Sustainment and Stability Programs (SSOP and SSOP II), which trained and equipped Georgian forces and command staff for peace support operations in Iraq.

Since the beginning of Operation Iraqi Freedom (OIF), by August 2008, 7800 Georgian soldiers had served in Iraq along with the U.S. forces.

Following the Russia-Georgia War in August 2008, the U.S. European Command implemented a comprehensive assessment of the Georgian Armed Forces. Based on the outcome of the assessment bilateral cooperation became focused on development of the defence institutions, assisting defence sector reform and building strategic and educational foundations that would facilitate necessary training, education, and rational force structure design and procurement.

This approach provided the framework for the development of the United States-Georgia Charter on Strategic Partnership signed by Secretary of State and Georgian Foreign Minister on January 9, 2009.

  

As an immediate consequence of the Strategic Partnership, the U.S. assistance contributed to a number of significant achievements including:

·         Completion of the Strategic Defence Review 2010-2014;

·         Publication of a new National Military Strategy;

·         Implementation of key Military Personnel Management System initiatives;

·         Structural reorganization of GAF.

Progress was also made in professional military education, including:

·         Development of National Defence Academy featuring award of a Bachelor Officer Program;

·         Establishment of the Georgian Simulations Training Center;

·         Development of a Georgian Command and Staff Training Course.

Moreover, another key pillar for the U.S. cooperation emerged to support Georgia’s participation in NATO-led missions. To this end, Georgia Deployment Program (GDP-ISAF) was established which began in fall 2009. In 2014 GDP-ISAF was replaced by GDP-Resolute Support Mission.

Georgia is currently one of the largest troop contributors and the number one per capita force contributor to RSM with 870 currently deployed on the ground.

Main Cooperation Mechanisms

On July 6, 2016, the Memorandum on Deepening the Defence and Security Partnership was signed. Based on this, on December 6, 2016, Georgia and the U.S. signed a multi-year (3 years) framework agreement on security cooperation for 2016-2019. The document signaled a new level in the U.S.-Georgia defence and security cooperation by improving the bilateral planning processes from short to mid term and concentrating efforts on developing Georgia’s Armed Forces combat readiness and self-sustaining institutional systems.

New U.S.-funded Training Program to Focus on Georgia`s Territorial Defense

The Georgia Defense Readiness Program (GDRP), a large U.S.-funded training program set to be launched next spring, will “strengthen the country’s territorial defense capabilities. 

The Defense Minister then noted that U.S. funding for defense reforms in Georgia “has been increasing year-by-year,” and that in 2017-2018 the amount would exceed USD 100 million, which “will be mostly used for training and equipping our armed forces.”

NATO-Georgia Cooperation

Relations between NATO and Georgia date back to 1992 when Georgia joined the North-Atlantic Cooperation Council (NACC). The latter was replaced by the Euro-Atlantic Partnership Council (EAPC) in 1997 as a forum for discussions between NATO and partners.

In 1994 Georgia joined the Partnership for Peace (PfP) program and since 1996 has been actively participating in training and exercises within this framework.

Georgia declared its aspiration to NATO membership for the first time at the 2002 Prague Summit and Georgia’s integration process into the Alliance began accordingly.

In 2004 Georgia became the first partner to develop an Individual Partnership Action Plan (IPAP) with NATO and undertook specific commitments in the frames of the Action Plan. In 2005 NATO deployed a Liaison Officer to Georgia, whereas the NATO Liaison Office (NLO) was inaugurated in Tbilisi in 2010. The Liaison Office is tasked with supporting ongoing reforms in Georgia and the country’s integration process into the Alliance.

At the 2014 NATO Wales Summit the Allies recognized Georgia as one of the most interoperable partners and invited to the “Enhanced Opportunities Partners” (EOP) group together with four other nations (Australia, Jordan, Finland, and Sweden). The abovementioned format grants the country enhanced opportunities of cooperation with NATO.

At the 2014 Wales Summit the Allies endorsed the Substantial NATO-Georgia Package (SNGP) as part of the Defence and Related Security Capacity Building Initiative (DCB). The SNGP aims at strengthening Georgia’s defense capabilities, enhancing its interoperability with NATO and advancing its preparations for membership.

Main Cooperation Mechanisms

The NATO-Georgia Commission (NGC)

Established in September 2008, the NATO-Georgia Commission (NGC) represents a format for both political consultations and practical cooperation to help Georgia advance on NATO membership path. The inaugural session of the NGC tool place during the visit of the North Atlantic Council (NAC) held on 15-16 September 2008. Regular meetings on different issues of cooperation at senior political-, as well as working level are held in the frames of the NGC.

The Annual National Programme (ANP)

On 2-3 December 2008 NATO Foreign Ministers agreed to replace the Individual Partnership Action Plan (IPAP) with the Annual National Program (ANP). The latter represents a practical cooperation mechanism between NATO and Georgia and supports enhancing Georgia’s interoperability with the Alliance.

ANP consists of annual planned reforms and necessary activities in the form of commitments undertaken by the Georgian side in accordance with the priorities of the Government of Georgia and NATO recommendations. The Programme is approved at the national level in the first half of the year, whereas its implementation is assessed by NATO at the end of each year. 

NATO-Georgia Joint Training and Evaluation Center (JTEC)

The NATO-Georgia Joint Training and Evaluation Centre (JTEC) was inaugurated on 27 August 2015. The Center provides training and evaluation to Georgian and international forces aimed at enhancing Georgia’s defense capabilities, increasing its interoperability with NATO, and contributing  to strenghtening regional and international security. 

NATO Expert Team has been permanently residing in Georgia since 2015.

The JTEC hosted the first ever NATO-Georgia Exercise 2016 on 10-20 November 2016. The Exercise was conducted with support of NATO Allied Command Transformation (ACT), Allied Land Command (LANDCOM), and Joint Force Training Center (JFTC) as well as representatives from Allied and partner countries. 

The Exercise hosted 250 participants from 11 Allied and 2 partner countries as well as representatives from NATO structures. The NATO-Georgia Exercise 2016 was the second international exercise held in the frames of SNGP.

Defence Institution Building School (DIBS)

The Defence Institution Building School (DIBS) was established under the SNGP on 28 June 2016. The School aims at increasing professional development capabilities of representatives from wider defense and security sector, through various courses and training, workshops, discussions and conferences on various issues.

DIBS Initiative is led by Germany. German and Slovak experts have been residing in Georgia since 2015.  Moreover, Clingendael - the Netherlands Institute of International Relations supports DIBS’ capability development.

NATO Response Force (NRF)

As a response to global security challenges, NATO’s Response Force (NRF) was established at the NATO Prague Summit in November 2002. It is made up of land, maritime and Special Operations Forces (SOF) components. The NRF is a highly ready and technologically advanced multinational force.

Georgian Armed Forces one infantry company has been declared in NRF since 2015, and following successful completion of the evaluation and certification process, has been part of NRF 2016-2018. Georgia has also declared a second infantry company to participate in the NATO-s Operational Capability Concept Evaluation and Feedback (OCC E&F) Programme. By the end of 2018 this unit will complete all appropriate procedures and will be prepared to participate in the NRF from 2019.

Peacekeeping and anti-terrorist operations, led by NATO:

The Georgian Kosovo Contingent (about 150 military servicemen) was a Georgian first military deployment, from 1999 to 2008, as part of the NATO-led international peacekeeping force in Kosovo, which was responsible for establishing a secure environment in Kosovo. Georgia provided one of the largest military contributions to the U.S.-led Operation IRAQI FREEDOM. Georgia strongly supported the U.S.-led military operation in Iraq and deployed troops to the country in August 2003. Georgia initial deployment grew up to 800 soldiers troop and then increased to 2,300 soldiers in mid- 2008. In addition to participation in Operation IRAQI FREEDOM from 2005 to 2008. Georgia also contributed a battalion of approximately 550 troops to the United Nations Assistance Mission in Iraq (UNAMI). The Georgia contingent was first deployed to Afghanistan in 2004 to take part in the NATO-led ISAF mission. So far, Georgia has over 1,560 soldiers in Afghanistan making the country the largest non-NATO troop contributor to the ISAF mission. From January 1, 2015, after the finishing ISAF mission NATO started new operation called the NATO-led ISAF mission. “Resolute Support” for the assistance of the Afghan Army and Security Forces. Among the 13 thousand military servicemen, Georgia is represented by 870 Military servicemen in this mission.

Military Spending:  The military budget of NATO  member states should be 2% of GDP. These criteria have complied with only 3 countries. Today it is being considered that till 2024, this requirement pledge limit must be met by 15 countries among of 29. In Georgia, this index already prevails 2% of GDP within the several years period. Furthermore, NATO requires at least 20% of the military budget expenditures should be released. Georgia already fulfills those standards of the Alliance. 

Public support of NATO integration: According to the different surveys,- having been implementing in Georgia since 2006 demonstrate that, more than 60% of the population of Georgia supported the idea of the European and Euro-Atlantic integration of Georgia. For example, based on of the new survey conducted by the Caucasus Research Resource Center Georgia, both NATO and EU membership is perceived as favorable. 67% respondents support Georgia`s NATO integration while 20% said no. Meanwhile, 73% of respondents were in favor or partially supporting joining the EU, with only 14% were disfavor. 

Main Aspects of the EU-Georgia Relations

Importance of the Integration into the European Union

Georgia’s step by step integration into the European structures can be considered as a one of the main guarantee of the further socio-economic developing of the country and strengthening the national independence.

As it is known, Georgia in June 27, 2014 signed the Association Agreement with EU. This document includes more than 1000 articles, which considers many fields of cooperation between two sides including defense and security.  

In this regard it is important to mention about the Georgia`s attempt related to the more involvement of EU in resolving the Russian-Georgian conflict and de-occupation of the two historic Regions of Georgia by peaceful means. From its turn, EU represents the mediator of the Russian-Georgian Ceasefire Agreement of August 12, 2008, and continues its diplomatic (and in case of Ukraine economic) pressure on the official Kremlin to respects the norms and principles of international law and the international obligations it has undertaken. In this regard it is significant to point out that in November 2011 European Parliament has recognized the occupation by the Russian Federation two territories of Georgia. 

During the discussion about the EU engagement in the conflict resolution process, it should be taken into consideration about the increasing the peacekeeping potential and experience of this organization. One of the clear example represents the active participation of the EU Monitoring Mission in Georgia since October 2010. Let`s consider more concretely the Role of EUMM in the providing peace and security in Georgia.

EUMM

The main purpose of the European Union Monitoring Mission (EUMM) in Georgia represents the monitoring EU-mediated Six Point Agreement which stopped the military operations in August 2008 war.

 The priorities of the EUMM mission are: 

• to ensure that there is no return to hostilities; 
• to provide the life safety for the local communities residing on both sides of the Administrative Boundary Lines (ABL) with Abkhazia and South Ossetia; 
• to promote the confidence building among the conflict parties; 
• to inform EU policy in Georgia and the wider region 

About 200 EU Monitors –representatives of the different member states have been patrolling day and night, mostly in the areas near the occupied territories of Georgia - Abkhazia and former South Ossetia Autonomous District. The Headquarters is in Tbilisi and Field Offices are located in Gori, Mtskheta and Zugdidi. 

Despite the fact, that EUMM mandate is valid throughout all of Georgia, de facto authorities of Abkhazia and South Ossetia encouraged by Russia have so far denied the functioning the Mission on the occupied territories of Georgia.

 

EU FRONTEX Programme

Mission and Tasks

Frontex implements the coordination of the European border management system in the framework of the EU fundamental rights charter applying the concept of Integrated Border Management.

Frontex assists the appropriate authorities – responsible for the border protection, from the different EU and partner countries to promote the cooperation. Frontex’s full title is the European Agency for the Management of Operational Cooperation at the External Borders of the Member States of the European Union. This structure was founded in 2004 to reinforce and streamline cooperation among of the national border authorities. For the successful implementation of its activities, Frontex is involved in the several operational areas which are defined in the founding Frontex Regulation and a subsequent amendment. These fields of activity are the following:

Joint Operations — Frontex plans, coordinates, implements and evaluates joint operations conducted using Member States’ staff and equipment at the sea, air and land spaces of the external borders.

Training — Frontex takes the responsibility for the promotion common training standards with an appropriate programs for the border guards, mid- and high-level officers.

Risk Analysis — Frontex collates and analyses intelligence on the ongoing situation at the external borders. These data are compiled from border crossing points and other operational information as well as from the Member States and open sources including mass media and academic research.

Research — Frontex serves as a platform to bring together Europe’s border-control personnel and the world of research and industry to bridge the gap between technological advancement and the needs of border control authorities.

Providing a rapid response capability — Frontex has created a pooled resource in the form of European Border Guard Teams (EBGT) and an extensive database of available equipment which brings together specialist human and technical resources from across the EU. These teams are kept in full readiness in case of a crisis situation at the external border.

Within the implementation of its responsibility, Frontex establishes close relations with other EU partners involved in the development of the area of Freedom, Security and Justice such as Europol, EASO, Eurojust, FRA or CEPOL, as well as with customs authorities in order to promote overall cohesion.

Frontex also actively cooperates with the border-control agencies of non-EU/Schengen countries — mostly with those countries identified as a source or transit route of irregular migration — in line with general EU external relations policy.

Areas of cooperation between Georgia and EU

Cooperation between two sides started in 2007, when between an appropriate representatives from the Georgian and EU sides was signed a working arrangement establishing operational cooperation between the agency and Georgian Border Police.

Main purpose of the EU-Georgia relationship in this field takes into consideration working together to improve border security and combat the phenomenon of illegal migration. The prevention of the illegal migration can only be achieved through cooperation between the EU member states and other countries. The working arrangement covers such elements as information exchange, risk analysis, training, research and development, and coordination of joint operational measures.

It will also enable the Georgian Border Police to be involved in the Frontex training tools, particularly in Common Core Curriculum for basic border guard and forgery detection training. Frontex will release the funds for Georgia's participation in these activities as well its involvement in joint operations coordinated by the agency.

The Role of Georgia in EU Peacekeeping operation (Case of Central Africa)

In the framework of EU-Georgia cooperation in the field Defense and Security Georgia has taken the moral responsibility about sending at the first stage 150 military servicemen in Central Africa, where the clashes on religious base creates the serious problem for this country. Due to the confrontation between Muslim and Christian part of the population, about 100 000 Internally Displaced Persons are in the critical situation. In general, about 800-1000 Georgian military servicemen will implement their mission in this African State, within the EU Peacekeepers, who, together with about 6000 military servicemen from the African Union are going to implement the joint operation.

      

The decision about sending the troops in Central Africa has been approved by the parliament of Georgia practically by the principle of consensus. Furthermore, which together with Ukraine is the member of EU Eastern Partnership Program, is going to send several Officers in Mali, within the EU Military Training Program.  

It is interesting to mention, that by the decision of the Ministers of Foreign Affairs of EU member states on February 10, 2014, the military operation of EU in Central Africa will be implemented. By this step, EU will assist the Central Africa by temporary manner (approximately 6 month period). Country will be supported on the territory of Capital city Bangi by the carrying out humanitarian aid and creation of the secured environment. With regard to Georgia, Georgia and Central Africa signed the agreement about establishment diplomatic relations on December 23, 2010, in November 2013 Georgia and EU signed the framework agreement for the participation of Georgia in the EU crisis management operations. 

Taking into consideration the difficult political situation in Central Africa, EU pays important attention to the contributions from the partners side. With regard to the difficult situation in Central Africa should be mentioned, that in Spring 2013 the rebels alliance “seleka” overthrown the loyal for the France government. At the end of the year, French have sent about 1200 decant troops to the Republic. Besides, here are about 3000 military servicemen from African Union.

Conclusion

Taking into consideration the new realities which were developed in the Caucasus and Black Sea Region within the last years period, at the main documents related to National Security, Military Strategy, Threats Assessments etc. important amendments have to be introduced and at the same time some documents have to be fully changed. Furthermore, for the further democratization of the security sector, it is existed necessity of the providing transparency (exceptions are documents-which include the secret information) and civil society participation at this process.