by Nino Apakidze
The adoption of the “Russian law” has frozen Georgia’s EU integration process, further distancing the country’s foreign policy from that of the European Union. However, in December 2023, when Georgia was granted candidate status, the EU also outlined nine essential steps that the country must follow to become a member of the union. One of the foremost commitments is to align Georgia’s foreign and security policies with those of the European Union.
Currently, Georgia’s alignment with the EU’s Common Foreign and Security Policy (CFSP) stands at 43%. The European Commission, in its enlargement policy document, expressed hope that Georgia will make additional efforts this year to improve this alignment.
EU Ambassador to Georgia, Pavel Herchinsky, described the 43% compatibility rate as a challenge: “Currently, the alignment rate is quite low, especially compared to other countries aspiring for membership. There is a long way to go for Georgia’s foreign and security policy positions to align with those of the European Union.”
Georgia received candidate country status for EU membership in December 2023, contingent upon gradually fulfilling the nine commitments. These include combating disinformation, reducing polarization, reforming the electoral and judicial systems, improving human rights protection standards, and de-oligarchization. Additionally, Georgia must strengthen parliamentary oversight, the Special Investigative and Personal Data Protection Service, and enhance the alignment of its foreign policy with the EU’s foreign policy.
Georgian specialists working on EU integration highlight several key events that distance Georgia’s foreign policy from the European Union and thus hinder the implementation of the nine steps:
- Indifferent support for Ukraine from the Georgian government;
- Adoption of the “Russian law” and the rollback of democratic processes;
- Declaring China as Georgia’s strategic partner;
- Spreading anti-Western messages and the government’s involvement in it.
In its 2023 report, the European Commission noted that Georgia did not join the EU’s restrictive sanctions against Russia and Belarus, including the closure of airspace. The European Union expects Georgia to refrain from actions and statements that contradict EU foreign policy, increase hybrid and cyber resilience, and continue to prevent the circumvention of EU sanctions for the benefit of Russia and Belarus.
What is the Georgian government doing in response to these expectations? Let’s examine each factor hindering the alignment of Georgia’s foreign policies with those of the EU separately.
Support for Ukraine
EU member states strengthened foreign policy coordination after Russia’s invasion of Ukraine to provide a unified response to global challenges. The CFSP ensures the alignment of EU countries’ foreign policies, as reaching a consensus on key issues enhances the region’s defense capability.
To align foreign policy, the EU’s enlargement policy communication requires a strategic approach between member and candidate countries. This includes constant support for EU positions, active participation in international forums and not siding with Russia in avoiding sanctions.
The ongoing war in Ukraine has shown the need for a unified stance in supporting sanctions against Russia. As a candidate country, Georgia demonstrates its commitment to common European values by joining sanctions. This alignment is reflected in supporting sanctions and participating in forums such as the Eastern Partnership.
“The statements made by the EU regarding Russia and countries with serious democracy issues (Belarus or African countries) were not joined by Georgia. This is one reason why we received the EU’s commitment to align policies,” said Vano Chkhikvadze, head of the Eurointegration Program at the Civil Society Foundation.
Adoption of the “Russian Law”
The Georgian government’s indifferent support for Ukraine was followed by the adoption of the “Russian law.” Despite the promise made by “Georgian Dream” in March 2023 that this law would not be revisited, it was adopted in May 2024 amid domestic and international protests.
According to EU Ambassador Herchinsky, the adoption of the Russian law froze the EU integration process.
“The spirit and content of the law do not align with the EU’s basic norms and values. This law undermines the work of civil society and independent media,” said EU High Representative Josep Borrell.
Therefore, leaving the law in force threatens not only the fulfillment of a specific commitment but the entire EU integration process.
China – Georgia’s Strategic Partner?
Before the adoption of the “Russian law,” the government declared China as the country’s strategic partner.
According to the Georgian Policy Institute (GIP), “The government’s indifferent support for Ukraine and political decisions aimed at strengthening ties with Russia and China raise questions about Georgia’s compatibility with the EU’s Common Foreign and Security Policy.”
Vano Chkhikvadze, head of the Eurointegration Program at the Civil Society Foundation, believes that cooperation with China is problematic and Georgia will have to choose because, in this case, the balancing policy does not work. World experience shows that China uses the economy as political capital.
“If the EU is your final destination, then you must play by the rules set by the EU, for which China is recognized as one of the threats,” says Chkhikvadze.
In this context, it is noteworthy that only China Communications Construction Company Limited (CCCC) is participating in the competition to build the deep sea water port of Anaklia. The Ministry of Economy is still reviewing the documentation. It will be interesting to see whether they will take into account the fact that one of the companies in this consortium has been sanctioned by the US and the World Bank in the past.
US Ambassador to Georgia Robin Dunnigan accuses CCCC of being linked to the Chinese Communist Party and financing Russia’s military intervention. In response, Tbilisi Mayor Kakha Kaladze evaluates the involvement of a Chinese company in the Anaklia project as “relieving” for the Georgian economy.
Anti-Western Propaganda and Disinformation
Recent decisions made by the Georgian government that are incompatible with European foreign policy have been highlighted on various European platforms. How do the “Georgian Dream” and its government respond to these criticisms? By spreading disinformation about European values and engaging in anti-Western propaganda.
For example, Tbilisi Mayor Kakha Kaladze wrote on his Facebook page: “No union is worth sacrificing the interests of my country and people.”
Prime Minister Irakli Kobakhidze also talks about entering Europe while protecting Georgia’s values: “In the seven years, the number of LGBT people in Europe has tripled. This is not a trend we want to see in our country. When the European Parliament persistently calls on us to promote trends in our country that are already heavily reflected in European societies, this is completely unacceptable for us. We want to enter the EU with our values and principles.”
Parliamentary Majority Leader Mamuka Mdinaradze believes that grants come into the country to support sexual minorities and confuse young people: “A lot of money comes into the country to support LGBTQ propaganda and against judiciary system as well as contrary to the interests of the family values. Grants are not approved aimlessly and without reason. That is why they tried hard last year to deceive our young people into believing that the American law was supposedly Russian.”
“Any sanction that can be imposed on me for the protection of my country’s independence, sovereignty, and peace is an honor for me. I have not wanted to travel to America for 43 years, so why do they think I will want to now? If necessary, I will sneak in from Mexico,” said Georgian Dream Regional Secretary Dimitri Samkharadze after media reports that the US imposed visa sanctions on the parliamentarian for supporting Russian law.
Tsisia Kirvalidze, a staff member of the Media Development Foundation, researches disinformation and anti-Western campaigns spread in the country. In our conversation, she summarized the messages spread in the country in recent months:
“Since the Georgian Dream brought back Russian law, there have been frequent cases where government officials and Kremlin actors try to show us the shortcomings of the West. Kobakhidze directly stated that NGOs are funded to then spread LGBTQ propaganda or engage in drug propaganda.”
“This is not the fulfillment of the commitments. When the ruling party spreads disinformation, it cannot be a factor facilitating Georgia’s path to EU integration,” says Kirvalidze.
What is the Government Doing to Align Foreign Policy with the EU?
The Georgian government is responsible for increasing the foreign and security policy alignment rate. On November 27, 2023, the Governmental Commission on Eurointegration approved measures to be taken for Eurointegration. This eight-page document starts with the necessary steps to fulfill the commitments discussed in this article. The action plan to align Georgia’s foreign policy with the EU includes the following three components:
- For 2024-2027, the government approved a communication strategy and action plan, which also includes combating disinformation. It also mentions conducting campaigns by the government to raise awareness about European values. We tried to obtain information about these campaigns, asking the government to share details on which campaigns were conducted, their timelines, target audiences, specific objectives, and results. We did not receive a response from them. However, the government has set 2024 as the deadline for implementing the action plan.
- Improving the Rate of Joining EU Statements: In 2023, out of 141 statements made on behalf of the EU High Representative, Georgia joined 70; the joining rate was 50%. According to the EU Ambassador to Georgia, who assessed in February, the joining rate is quite low. We could not get a response from the Ministry of Foreign Affairs on which specific statements Georgia refrained from joining.
- Continuing Active Cooperation with Relevant EU Structures: Based on existing practices, to prevent the use of Georgia’s territory to circumvent EU sanctions. In February 2024, we published an article informing the public about evidence of how Georgia’s territory is used to export sanctioned vehicles to Russia. Therefore, questions remain with the government— is this point of the action plan being fulfilled or not?
We wanted to discuss these topics with the Ministry of Foreign Affairs and the Governmental Commission on Eurointegration. They refused to give an interview.
Why is the Alignment of Security and Foreign Policy Decisive?
Anna Dekalchuk is a professor at the University of Glasgow, specializing in critical sector studies. All her university degrees are related to EU studies, and for years she has been researching EU-Russia and post-Soviet country relations. We spoke to her via an online call.
“For the EU, speaking from a common position in foreign policy is problematic because it consists of 27 member states, each with individual foreign national policies and priorities. However, the idea of the union from its foundation was to have common positions among member countries on the international stage. Therefore, solving certain issues requires the consent of each member state. Especially in the current turbulent geopolitical environment, the EU needs to be able to speak with one voice. This is also a practical dimension. Therefore, as soon as Georgia joins, the EU must be sure that this will not hinder the possession of unified positions. That is why this point is of decisive importance,” Dekalchuk told us during the interview.
Our respondent clarifies that this does not mean the EU requires Georgia to duplicate its foreign policy. “Georgia should have an independent foreign policy. At the same time, the country needs to support EU positions on the international stage.”
Dekalchuk believes that the joining rate of 43% is quite low. According to the commitment, the EU expects the candidate country to join the statements of the High Representative on foreign affairs and security policy issues. “In 2024, 42 statements were made to which the candidate country could join. Out of these, Georgia supported only 19, that is, less than 50%. Georgia has the lowest rate among all countries aspiring for EU membership.”
Regardless of the progress made in fulfilling other commitments, this specific obligation cannot be outweighed. “There is one thing I like about the EU; it is very detailed and technical, along with being political. On the path to enlargement and membership, there is a list, and each point is evaluated. Among them, foreign policy is just one point. If a country makes progress only in one direction, it will not help in fulfilling other obligations.”
Indeed, the fulfillment of these nine steps and the assessment of specific progress will be one of the decisive components for opening negotiations on EU membership.
“Our main task now is to fulfill these nine steps, which will bring us closer to the EU and allow us to achieve real transformation. At the end of the year, the EU will return to this issue, assess Georgia, and if we have made some progress, we will move forward,” Vano Chkhikvadze, head of the Eurointegration Program at the Civil Society Foundation, told us.
In this situation, it seems that progress will be difficult to achieve. The government is not even following its action plan and has not yet made effective decisions to fulfill the first two points of the nine steps.
“The door to EU membership is open for Georgia, but if the government continues on the same path, this door will close, and the Georgian people will pay the price,” said EU High Representative for Foreign Affairs and Security Policy Josep Borrell.
Parliamentary elections are ahead, which will ultimately determine whether Georgia’s EU integration will halt or if the country will finally enter the door to Europe that has opened after so many years.
