Georgia is a multinational state, building democratic institutions and forging a civic identity. However, it has made little progress towards integrating Armenian and Azeri minorities, who constitute over 12 per cent of the population. Tensions are evident in the regions of Samtskhe-Javakheti and Kvemo-Kartli, where the two predominantly live and which have seen demonstrations, alleged police brutality and killings during the past two years. While there is no risk of these situations becoming Ossetian or Abkhaz-like threats to the state’s territorial integrity, Tbilisi needs to pay more attention to minority rights, including use of second languages, if it is to avoid further conflict.Some steps have been taken to improve the lives of minorities. With donor support, Georgia has invested in road and infrastructure rehabilitation in minority regions; created a ministry for civic integration; established a public administration institute to train minorities; and ratified the Framework Convention for the Protection of National Minorities. But overall the priority has been to assert national unity over minority protection.

Azeris and Armenians are underrepresented in all spheres of public life, especially government. The problem is especially acute for the Azeris in Kvemo-Kartli, where Georgians hold all important positions. Ethnic minorities’ political participation and representation – a key to more effective integration – is disturbingly low. Lack of dialogue between Tbilisi and minorities adds to perceptions of discrimination and alienation.

The minorities’ biggest problem is inability to speak the state language. Since the Rose Revolution, the government has been enforcing laws obliging minorities to communicate in Georgian with local officials, even to acquire official documents, submit complaints or receive services. State jobs and professional licences are contingent on knowing Georgian and passing new qualification exams. Language instruction in schools is inadequate, and fewer minorities are attending higher education institutions.

The administration of President Saakashvili is undertaking ambitious local government reforms. A new law on self-governance was passed in 2005 and elections for new municipalities were held in October 2006. Yet, power remains largely with regional and Tbilisi-based officials. Minorities are unconvinced decentralisation will give them greater decision-making influence. Armenians especially want to take their own decisions on such issues as education and culture. Unless decentralisation allows this, they will continue to demand autonomy for Samtskhe-Javakheti. (Azeri activists in Kvemo-Kartli prioritise greater representation in local government rather than autonomy.)

Minorities have been emigrating to Armenia and Azerbaijan. However, Yerevan and Baku do not publicly advocate on behalf of their respective minorities. Their priority is good relations with Tbilisi and short-term stability. Armenians are mobilising politically more than Azeris but both minorities have organised recent protests which have on occasion turned violent. Tbilisi needs to do more to encourage minorities to address their problems through state structures rather than in the street.

Tbilisi / Brussels, 22 November 2006