国会研究服务部-格鲁吉亚：背景与美国政策（英文）-2021.4-24页_1mb

Georgia: Background and U.S. Policy Summary

Introduction

Georgia, located in the South Caucasus between the Black and Caspian Seas, has been a close U.S. partner among post-Soviet states since gaining independence in 1991. The U.S. has supported Georgia's sovereignty and territorial integrity, and the country is a leading recipient of U.S. aid in Europe and Eurasia. The U.S. and Georgia have deepened their strategic partnership following Russia's 2008 invasion of Georgia and 2014 invasion of Ukraine.

Politics and Governance

• Georgia has a parliamentary system of governance, with a unicameral parliament of 150 members.
• The center-left Georgian Dream-Democratic Georgia (GD) party has governed since 2012, led by Bidzina Ivanishvili, who has a dominant behind-the-scenes influence.
• The October 2020 parliamentary elections were controversial, with opposition parties boycotting and only 96 MPs currently seated (90 from GD and 6 from opposition).
• The shift to a more proportional election system in 2020 was facilitated by the U.S., Germany, the EU, and the Council of Europe, but not fully implemented due to opposition concerns.
• Nika Melia, the leader of the opposition United National Movement (UNM), was arrested in February 2021, which intensified political tensions. His arrest was criticized as politically motivated.

Economy

• Georgia's economy has been recovering from post-Soviet decline, with GDP growth averaging around 3-5% from 2013 to 2019.
• The economy faced a 6% decline in 2020 due to the impact of the COVID-19 pandemic.
• Poverty has decreased over the years, with 20% of the population living in poverty in 2019 (down from 35% a decade earlier).
• Tourism and migrant remittances are key economic sectors. Tourism accounted for 8% of GDP in 2019, while remittances were equivalent to 9% of GDP in 2020, primarily from Russia, Italy, Greece, the U.S., and Israel.
• Foreign direct investment (FDI) averaged $1.6 billion annually from 2015 to 2019, with major investments in transport, finance, energy, and construction.
• The IMF has supported Georgia's economic reforms and provided financial assistance, including a $585 million lending program in 2020.

Relations with the European Union and NATO

• Georgia has long sought closer ties with the EU and NATO, with over 80% of the population supporting EU membership and over 70% supporting NATO membership.
• In 2014, Georgia signed an association agreement with the EU, including a Deep and Comprehensive Free Trade Area.
• The EU provides significant foreign aid to Georgia, over €100 million annually, and has been involved in mediating Georgia's political crisis.
• Georgia is a key partner of NATO, with the Alliance considering it one of its closest partners. It joined the NATO Response Force in 2015 and is an Enhanced Opportunity Partner.
• The U.S. has provided substantial military aid through the Foreign Military Financing (FMF) program and other capacity-building initiatives.

Relations with Russia and Secessionist Regions

• Georgia has had tense relations with Russia since the 1990s, particularly over the Russian-occupied regions of Abkhazia and South Ossetia.
• Russia invaded Georgia in 2008 to prevent the Georgian government from reasserting control over these regions, which it now considers de facto independent.
• Many observers believe Russia supports the secession of Abkhazia and South Ossetia to hinder Georgia's Western integration.
• The U.S. has consistently supported Georgia's sovereignty and territorial integrity and has imposed sanctions on individuals responsible for human rights abuses in these regions.

U.S.-Georgia Relations

• The U.S. has provided significant bilateral aid to Georgia, averaging $124 million annually since FY2017, including $35 million in FMF for FY2021.
• Congress has introduced several bills to support Georgia, including the Georgia Support Act (H.R. 923) in the 117th Congress, which would impose sanctions on those responsible for human rights abuses in Abkhazia and South Ossetia.
• The U.S. has also supported Georgia's efforts to integrate with the EU and NATO, recognizing its strategic importance in the region.

Key Events and Controversies

• The October 2020 elections were marred by controversy, with opposition boycotts and accusations of fraud.
• The EU attempted to mediate the political crisis but failed to resolve it.
• The arrest of opposition leader Nika Melia in February 2021 further escalated tensions.
• The U.S. and other international stakeholders expressed concerns over the timing and context of charges against TBC Bank founders, which led to the cancellation of the Anaklia port project in 2020.
• Judicial reforms have been a contentious issue, with concerns about the independence and transparency of the judicial system.

Conclusion

Georgia's political and economic landscape continues to be shaped by its aspirations for Western integration, its complex relationship with Russia, and the challenges posed by internal political tensions. The U.S. remains a key ally, providing both economic and military support while advocating for Georgia's sovereignty and territorial integrity. Despite recent setbacks, Georgia is seen as a strategic partner in the region, with strong public support for EU and NATO membership.