国会研究服务部-格鲁吉亚：背景与美国政策（英文）-2021.6-24页_1mb

Summary of Georgia: Background and U.S. Policy

Introduction

Georgia, located in the South Caucasus between the Black and Caspian Seas, has been a key U.S. partner among post-Soviet states. The U.S. has supported Georgia's sovereignty and territorial integrity, particularly in light of Russia's 2008 invasion and its ongoing support for the secessionist regions of Abkhazia and South Ossetia. Georgia's political system is often described as "hybrid," combining democratic and nondemocratic elements.

Politics and Governance

Georgia operates under a parliamentary system with a unicameral parliament of 150 members. The center-left Georgian Dream-Democratic Georgia (GD) party, led by Bidzina Ivanishvili, has governed since 2012. In 2020, GD won the parliamentary elections with 60% of the seats, despite opposition claims of electoral fraud. The opposition, led by Nika Melia, boycotted the second round of elections and refused to take their seats in parliament.

The 2020 elections introduced a transitional system with 120 party list seats and 30 majoritarian seats. The shift to a fully proportional system began in 2024. The U.S. and EU mediated a political agreement in April 2021, which included opposition parties entering parliament and the release of Nika Melia. The agreement also provided for early elections if GD fails to secure 43% of the party list vote in the 2021 local elections.

In 2021, Melia was arrested for allegedly violating court orders, leading to protests and international criticism. The EU facilitated his release by covering his bail, and the U.S. has called for judicial reforms to enhance transparency and independence.

October 2020 Election Controversy

The October 2020 parliamentary elections were marked by controversy. Opposition parties accused the ruling GD of electoral fraud, citing poll book imbalances and alleged state interference. International observers, including the OSCE, considered the elections competitive but noted concerns about the appeals process, voter pressure, and the blurring of lines between the ruling party and the state.

Over 2,000 complaints were submitted, but only about 13% were upheld or partially upheld. The government attributed discrepancies to human error and staffing issues. Despite these, the opposition boycotted the second round and refused to take their seats, leading to a political stalemate. The EU and U.S. played a key role in mediating the dispute, which eventually led to a political agreement in April 2021.

Arrest of Opposition Leader

Nika Melia, the leader of the opposition United National Movement (UNM), was arrested in February 2021 for allegedly violating court orders. His arrest was seen as politically motivated and sparked widespread protests. The government justified the action as necessary due to his alleged violations, but the UNM and international organizations condemned it. Melia was released from pretrial detention in May 2021 after the EU covered his bail.

The arrest led to the resignation of then-Prime Minister Giorgi Gakharia, who opposed the move. The political agreement reached in April 2021 also included provisions for amnesty for crimes related to the June 2019 protests, which had led to Melia's initial prosecution.

EU-Brokered Political Dialogue

The EU facilitated a political dialogue in March 2021, leading to a negotiated agreement in April 2021. The agreement included opposition parties entering parliament, Melia's release, and judicial and electoral reforms. It also introduced a provision for early elections if GD fails to secure 43% of the party list vote.

The agreement was signed by most boycotting opposition parties and some individual MPs. The UNM, however, delayed signing until after Melia's release. The process was supported by the U.S. and involved a parliamentary working group on electoral reform.

Judicial Reform Challenges

Georgia has undergone judicial reforms since the 1990s, including the establishment of the High Council of Justice, which oversees the appointment and dismissal of judges. However, the process has been criticized for lack of transparency and perceived undue influence.

In 2019, the parliament approved the lifetime appointment of 14 Supreme Court justices, which drew criticism from domestic and international stakeholders. Despite calls for reform, the GD-led government continued to push through judicial appointments, leading to further concerns about judicial independence. In March 2021, CSOs proposed reforms to address these issues, but GD-sponsored legislation was seen as unrealistic and ineffective.

Economy

Georgia's economy has experienced growth since 2017, but was hit hard by the COVID-19 pandemic in 2020, with GDP declining by 6%. The economy is expected to grow by 3.5% to 4% in 2021.

The country has a relatively small population (3.72 million) but a mid-sized GDP per capita. Poverty has declined from 37% in 2010 to 21% in 2020, and unemployment has dropped from 27% to 19%. The economy is heavily reliant on migrant remittances, which accounted for about 9% of GDP from 2016 to 2020.

Key exports include copper ores, beverages, motor vehicles, and iron and steel. Georgia's economic recovery has been supported by U.S. aid and trade relations, particularly with the U.S. and EU.

Relations with the European Union and NATO

Georgia has long pursued closer integration with the EU and NATO. The U.S. has supported this goal through economic aid and security cooperation. The 2020 elections and subsequent political crisis led to renewed calls for reforms to align with EU standards.

The U.S. has also supported Georgia's aspirations to join NATO, which are seen as a counterbalance to Russian influence. In 2021, the U.S. Congress appropriated $132 million in bilateral aid to Georgia, including $35 million in FMF. The U.S. has also introduced the Georgia Support Act (H.R. 923) to enhance assistance and impose sanctions on those responsible for human rights abuses in Abkhazia and South Ossetia.

Relations with Russia and Secessionist Regions

Georgia's relationship with Russia has been strained since the 1990s, particularly due to Russia's support for the secessionist regions of Abkhazia and South Ossetia. Russia invaded Georgia in 2008 to prevent the country from reasserting control over these regions, which are now de facto Russian protectorates.

The U.S. has consistently supported Georgia's territorial integrity and condemned Russia's actions. The 2020 parliamentary elections and the subsequent arrest of Melia have further strained relations. The U.S. and EU have called for reforms to address the political crisis and improve Georgia's governance and judicial system.

U.S.-Georgia Relations

The U.S. has maintained strong ties with Georgia, providing significant bilateral aid and supporting its NATO and EU integration. The Georgia Support Act (H.R. 923) was introduced in the 117th Congress to enhance U.S. assistance and impose sanctions on those responsible for human rights abuses in the secessionist regions.

Congress has also expressed concern over Georgia's democracy and political developments. In April 2021, a bipartisan group of Senators introduced S.Res. 176, calling for the implementation of the political agreement and systemic reforms. The U.S. has been a key mediator in resolving Georgia's political crisis and has continued to provide financial and security support.

Foreign Aid

Since FY2017, the U.S. has allocated an average of $123 million annually in bilateral aid to Georgia, including $40 million in FMF. In FY2020, the aid amounted to $131 million, and in FY2021, it was $132 million. For FY2022, the budget request includes $120.6 million in bilateral aid.

This aid supports Georgia's economic development, security, and judicial reforms. The U.S. has also provided military aid through FMF, capacity-building programs, and Coalition Support Funds since FY2010.

Trade

Georgia has a growing trade relationship with the U.S. and EU. The country's exports include copper ores, beverages, motor vehicles, and iron and steel. Trade agreements and economic cooperation have been a key part of U.S. policy in Georgia, supporting its integration into Western institutions.

The U.S. has also encouraged Georgia to diversify its trade partners to reduce dependency on Russia and other regional powers. This has been part of broader efforts to strengthen Georgia's economic resilience and align it with Western standards.

Conclusion

Georgia remains a strategic partner of the U.S. in the South Caucasus, with a focus on supporting its sovereignty, territorial integrity, and democratic development. The country has faced political challenges, including election controversies and the arrest of opposition leaders, which have been addressed through EU-brokered agreements and U.S. diplomatic support.

Economic growth has been steady, though affected by the pandemic, and Georgia continues to seek integration with the EU and NATO. The U.S. has played a critical role in supporting Georgia's political and economic reforms, providing substantial aid and advocating for democratic values.