Final Document of the Moscow Meeting (Moscow Ceasefire)

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Country/entity: Georgia
Russia
Abkhazia
Region: Europe and Eurasia
Agreement name: Final Document of the Moscow Meeting (Moscow Ceasefire)
Date: 3 Sep 1992
Agreement status: Multiparty signed/agreed
Interim arrangement: Yes
Agreement/conflict level: Intrastate/intrastate conflict
Georgian Separatist Conflicts (1989 - )
The Abkhazia-Georgia Conflict (1992 - )
Much like other conflicts that sprung up in the wake of the collapse of the Soviet Union, the Abkhazia conflict emerged as an ethnic conflict following heighten nationalist awareness among Abkhaz and other minorities residing in the region. In 1978, protests against the Georgianization of Abkhazia emerged from Abkhaz intellectuals. Towards the end of the 1980s, both Georgian and Abkhaz nationalists demanded independence from the Soviet Union. Tensions began following clashes at Sukhumi University between pro-Unity protestors and Abkhaz nationalists in April-July 1989. However, the conflict remained a legal conflict up until August 1992 following the 1991 elections, wherein Abkhazians felt they were under-represented. War broke out between Abkhaz separatists, supported by Russian forces and hired fighters from the North Caucus. Within Abkhazia, Abkhaz separatists were generally supported by ethnically Armenian and Russian residents. Within Georgia the conflict was exacerbated following conflict in South Ossetia from 1989 onwards in addition to political strife between the supporters of the ousted president, Zviad Gamsakurdia, and the post-coup government led by Eduard Shevardnadze.

Significant human rights abuses occurred, particularly after the capture of Sukhumi in September 1993, after which Georgian residents, which consisted of 45 per cent of the population in 1989, were faced with mass expulsion and ethnic cleansing. Russian Peacekeepers acting under the umbrella of the Commonwealth of Independent States (CIS), were deployed on the Abkhazia-Georgia line following a ceasefire in 1994. Atrocities towards ethnic Georgian’s continued with over 1,500 deaths post-conflict. In 1998 fighting re-erupted following a flare up of fighting in South Ossetia. Again it was resolved with a ceasefire agreement. However, as of 2016 the conflict remains unresolved.

The Russio-Georgian War (South Ossetia) (1989 - )
Following heightened nationalist awareness among Ossetians and policies undertaken at the expense of ethnic minorities by the Georgian government led by President Gamsakurdia, calls for Ossetian Independence increased. After clashes broke out in Tskhinvali during a pro-Georgia protest, the conflict began to militarize. When President Gamsakurdia maintained his position after elections in 1990, which were boycotted by South Ossetia, Ossetians organised elections for their own parliament. The central Georgian government reacted by abolishing the autonomous status previously held by South Ossetia. The formation of ethnic militias and increased attacks on civilians escalated on both sides and in December 1990 a state of emergency and an economic blockade were declared. Fighting was haphazard as fighters on both sides were poorly equipped and disciplined. The Georgian National Guard was primarily formed of volunteers due to a lack of resources and as a result fighters often acted out of self-interest. Assaults on Tskhinvali by Georgian forces were repulsed on several occasions, and Georgian forces were also noted to expel Ossetian residents and destroy villages out of revenge and as a means to re-claim territory.

The Sochi agreement (1992) established a ceasefire and security corridor, as well as divided the territory between Georgian and Ossetian administration. Relations deteriorated drastically in April 2008, and following shelling of Georgian villages on August 1, the Georgian military responded in force retaking most of Tskhinvali by August 7. Russian forces intervened on behalf of Ossetian separatists and after retaking Tskihvali, opened another front in the Kordori Gorge. A ceasefire was brokered on August 12, and the Kremlin declared its recognition of the territories of South Ossetia and Abkhazia on August 26. Russian forces have since strengthened their military presence in those regions in violation of the ceasefire.
Stage: Ceasefire/related
Conflict nature: Government/territory
Peace process: Abkhazia peace process
Parties: Signatories: FOR THE RUSSIAN FEDERATION;
G. s. Khizha
A. v. Kozyrev
P. s.Grachev
A. M. Mirzabekov
M. M. Magomedov
B.M. Kokov
K. M. Karmokov
v.N. Saveliev
v. I. Khubiev
s. v. Khetagurov
A. K. Galazov
A. A.Dzharimov

FOR THE REPUBLIC OF GEORGIA
T. I.Siqua
T. K. Kitovani
A.D. Chikvaidze
A. K. Tleuzh
v. N.Diakonov
E. s.Kuznetsov
v. F. Choub

Abkhazia [although not recognized as such in agreement]
v. G. Ardzinba
v. I. Zarandia
T.Nadareishvili
Third parties: Preamble notes participation of leaders of Abkhazia and the North Caucasian republics, territories and regions of the Russian Federation
Description: Parties agreed to a ceasefire and affirmed territorial integrity of Georgia. Provided for establishment of a monitoring and inspection commission; an agreed level of armed forces, exchange of detainees, hostages and prisoners and prohibition and prevention of all terrorist acts or taking of hostages. Also made provision for removal of obstacles to free movement; creation of conditions for return of refugees and steps to search for those who have disappeared, as well as steps to rehabilitate the area and to ensure availability of humanitarian assistance. Reaffirmed need to respect human rights and rights of national minorities, to prevent discrimination, and to hold free and democratic elections. Parties also agreed to assist legitimate authorities in Abkhazia to resume their normal functions and appealed for fact-finding missions and observers.

Agreement document: RU_GE_920903_Moscow Agreement.pdf (opens in new tab) | Download PDF

Groups

Children/youth: No specific mention.
Disabled persons: No specific mention.
Elderly/age: No specific mention.
Migrant workers: No specific mention.
Racial/ethnic/national group: Groups→Racial/ethnic/national group→Anti-discrimination
Page 3, Article 8, The Parties reaffirm the need to respect international standards in the area of human rights and national minorities, to prevent discrimination based on nationality, language or religion and to hold free democratic elections.
Religious groups: Groups→Religious groups→Anti-discrimination
Page 3, Article 8, The Parties reaffirm the need to respect international standards in the area of human rights and national minorities, to prevent discrimination based on nationality, language or religion and to hold free democratic elections.
Indigenous people: No specific mention.
Other groups: No specific mention.
Refugees/displaced persons: Groups→Refugees/displaced persons→Substantive
Page 2, Article 5, Conditions shall be created for the return of refugees to their permanent homes. Refugees will be provided with the necessary relief and assistance.

Steps will be taken to search for persons who have disappeared and to evacuate those wishing to leave Abkhazia.
Social class: No specific mention.

Gender

Women, girls and gender: No specific mention.
Men and boys: No specific mention.
LGBTI: No specific mention.
Family: No specific mention.

State definition

Nature of state (general): Page 1, Article 1, The territorial integrity of the Republic of Georgia shall be ensured. ...

Page 3, Article 11, The authorities and administrative entities of the North Caucasian republics, regions and territories which form part of the Russian Federation shall take effective measures to halt and prevent all acts waged from their territory that are in violation of the provisions of this agreement. They shall promote respect for this agreement and the restoration of peace in the region. They shall take all necessary steps to explain the provisions of this agreement to the population.
State configuration: No specific mention.
Self determination: No specific mention.
Referendum: No specific mention.
State symbols: No specific mention.
Independence/secession: No specific mention.
Accession/unification: No specific mention.
Border delimitation: No specific mention.
Cross-border provision: No specific mention.

Governance

Political institutions (new or reformed): No specific mention.
Elections: Page 3, Article 8, The Parties reaffirm the need to respect international standards in the area of human rights and national minorities, to prevent discrimination based on nationality, language or religion and to hold free democratic elections.
Electoral commission: No specific mention.
Political parties reform: No specific mention.
Civil society: Page 3, Article 7, The Parties shall take steps to rehabilitate affected regions and to ensure that humanitarian assistance, including international assistance, is made available to the population affected by the conflict. The Red Cross, in consultation with the Monitoring and Inspection Commission, shall identify the procedure for the delivery and distribution of relief.
Traditional/religious leaders: No specific mention.
Public administration: No specific mention.
Constitution: No specific mention.

Power sharing

Political power sharing: No specific mention.
Territorial power sharing: No specific mention.
Economic power sharing: No specific mention.
Military power sharing: No specific mention.

Human rights and equality

Human rights/RoL general: Page 1, Respecting human rights and freedoms as well as the rights of national minorities,

Page 3, Article 8, The Parties reaffirm the need to respect international standards in the area of human rights and national minorities, to prevent discrimination based on nationality, language or religion and to hold free democratic elections.
Bill of rights/similar: No specific mention.
Treaty incorporation: Page 1, Reaffirming their commitment to the spirit and the letter of the Charter of the United Nations, the principles of the Final Act of the Conference on Security and Cooperation in Europe, the Paris Charter for a New Europe and the Helsinki Declaration of 1992,
Civil and political rights: Human rights and equality→Civil and political rights→Liberty and security of person
Page 3, Article 3
The Parties shall prohibit and prevent all terrorist acts or the taking of hostages and shall take effective steps to bring the perpetrators to justice.
Socio-economic rights: No specific mention.

Rights related issues

Citizenship: No specific mention.
Democracy: Page 3, Article 8, The Parties reaffirm the need to respect international standards in the area of human rights and national minorities, to prevent discrimination based on nationality, language or religion and to hold free democratic elections.
Detention procedures: No specific mention.
Media and communication: No specific mention.
Mobility/access: Page 2, Article 4, Measures shall be taken promptly to remove any impediment to the free movement of goods and services and of persons engaging in lawful activities. The smooth and uninterrupted operation of land, air and sea communications and the protection of borders shall .be ensured accordingly. Particular emphasis shall be placed on guaranteeing the security of relevant segments of the Transcaucasian railway through the establishment of a joint mechanism.
Protection measures: Rights related issues→Protection measures→Other
Page 2, Article 4, Measures shall be taken promptly to remove any impediment to the free movement of goods and services and of persons engaging in lawful activities. The smooth and uninterrupted operation of land, air and sea communications and the protection of borders shall .be ensured accor
Other: No specific mention.

Rights institutions

NHRI: No specific mention.
Regional or international human rights institutions: No specific mention.

Justice sector reform

Criminal justice and emergency law: No specific mention.
State of emergency provisions: No specific mention.
Judiciary and courts: No specific mention.
Prisons and detention: No specific mention.
Traditional Laws: No specific mention.

Socio-economic reconstruction

Development or socio-economic reconstruction: Socio-economic reconstruction→Development or socio-economic reconstruction→Humanitarian assistance
Page 3, Article 7, The Parties shall take steps to rehabilitate affected regions and to ensure that humanitarian assistance, including international assistance, is made available to the population affected by the conflict. The Red Cross, in consultation with the Monitoring and Inspection Commission, shall identify the procedure for the delivery and distribution of relief.
National economic plan: No specific mention.
Natural resources: No specific mention.
International funds: No specific mention.
Business: No specific mention.
Taxation: No specific mention.
Banks: No specific mention.

Land, property and environment

Land reform/rights: No specific mention.
Pastoralist/nomadism rights: No specific mention.
Cultural heritage: No specific mention.
Environment: No specific mention.
Water or riparian rights or access: No specific mention.

Security sector

Security Guarantees: No specific mention.
Ceasefire: Security sector→Ceasefire→Ceasefire provision
Page 1, Article 1, ... All armed formations taking part in the conflict shall cease their fire and all use of force against each other as of 5 September 1992 at noon. Prior to the entry into force of the cease-fire, the parties to the conflict shall undertake to refrain from any offensive actions. ...

Page 2, Article 1, ... Once the cease-fire is in force and troops have been deployed, the Commission shall ensure that the armed forces of the Republic of Georgia present in the conflict zone do not exceed the agreed level required for the purposes of this agreement (protection of the railway and certain other installations).
Police: No specific mention.
Armed forces: Page 2, Article 1, ... Once the cease-fire is in force and troops have been deployed, the Commission shall ensure that the armed forces of the Republic of Georgia present in the conflict zone do not exceed the agreed level required for the purposes of this agreement (protection of the railway and certain other installations).

Page 3, Article 9, The armed forces of the Russian Federation which are temporarily located in the territory of the Republic of Georgia, including Abkhazia, shall remain strictly neutral and shall not take part in internal disputes.

All authorities and administrative entities in the Republic of Georgia, including Abkhazia, agree to respect the neutrality of the Russian armed forces deployed in the territory and to halt immediately all unlawful acts committed by soldiers, members of their families and military property.
DDR: Security sector→DDR→Demilitarisation provisions
Page 1, Article 1, ... In order for the Commission to function, members shall assign to it appropriate units to carry out disarmament, disbanding and withdrawal from Abkhazia and to prevent illegal armed formations and groups from entering Abkhazia, in order to maintain the entire conflict zone perimeter under strict control.
Intelligence services: No specific mention.
Parastatal/rebel and opposition group forces: Page 1, Article 1, ... In order for the Commission to function, members shall assign to it appropriate units to carry out disarmament, disbanding and withdrawal from Abkhazia and to prevent illegal armed formations and groups from entering Abkhazia, in order to maintain the entire conflict zone perimeter under strict control.
Withdrawal of foreign forces: No specific mention.
Corruption: No specific mention.
Crime/organised crime: No specific mention.
Drugs: No specific mention.
Terrorism: Page 3, Article 3
The Parties shall prohibit and prevent all terrorist acts or the taking of hostages and shall take effective steps to bring the perpetrators to justice.

Transitional justice

Transitional justice general: No specific mention.
Amnesty/pardon: No specific mention.
Courts: Transitional justice→Courts→National courts
Page 2, Article 6, Effective measures shall be taken within the conflict zone to halt and prevent acts of violence and looting and to bring perpetrators to justice.
Mechanism: No specific mention.
Prisoner release: Page 2, Article 2, Until 10 September 1992, exchanges of detainees, hostages, prisoners and others shall take place in accordance with the principle "all for all".
Vetting: No specific mention.
Victims: No specific mention.
Missing persons: No specific mention.
Reparations: No specific mention.
Reconciliation: No specific mention.

Implementation

UN signatory: No specific mention.
Other international signatory: No specific mention.
Referendum for agreement: No specific mention.
International mission/force/similar: Page 3, Article 9, The armed forces of the Russian Federation which are temporarily located in the territory of the Republic of Georgia, including Abkhazia, shall remain strictly neutral and shall not take part in internal disputes.

All authorities and administrative entities in the Republic of Georgia, including Abkhazia, agree to respect the neutrality of the Russian armed forces deployed in the territory and to halt immediately all unlawful acts committed by soldiers, members of their families and military property.
Enforcement mechanism: Page 1, Article 1, ... A Monitoring and Inspection Commission, composed of representatives to be appointed by the authorities of Georgia, including Abkhazia, and Russia, shall be established immediately. The Commission shall ensure compliance with the cease-fire and with other provisions of this agreement, in accordance with the procedures to be elaborated by it. ...

Page 4, Article 12, The Parties appeal to the United Nations and to the Conference on Security and Cooperation in Europe to support the principles of settlement set out above and to promote respect for them, particularly by sending fact-finding missions and observers.
Related cases: No specific mention.
Source: UN Peacemaker; http://peacemaker.un.org/sites/peacemaker.un.org/files/GE_920903_Moscow%20Agreement.pdf

Moscow Agreement

The President of the Russian Federation and the President of the State Council of the Republic of Georgia,

Having considered, with the participation of the leaders of Abkhazia and the North Caucasian republics, territories and regions of the Russian Federation, the situation in Abkhazia,

Seeking an immediate cease-fire, a solution to the crisis and the creation of conditions for a comprehensive political settlement in Abkhazia, which has become an area of military conflict,

Reaffirming their commitment to the spirit and the letter of the Charter of the United Nations, the principles of the Final Act of the Conference on Security and Cooperation in Europe, the Paris Charter for a New Europe and the Helsinki Declaration of 1992,

Considering inadmissible any infringement of the universally recognized principles of the territorial integrity of States and the inviolability of borders,

Respecting human rights and freedoms as well as the rights of national minorities,

Have agreed as follows:

Article 1

The territorial integrity of the Republic of Georgia shall be ensured.

All armed formations taking part in the conflict shall cease their fire and all use of force against each other as of 5 September 1992 at noon.

Prior to the entry into force of the cease-fire, the parties to the conflict shall undertake to refrain from any offensive actions.

A Monitoring and Inspection Commission, composed of representatives to be appointed by the authorities of Georgia, including Abkhazia, and Russia, shall be established immediately.

The Commission shall ensure compliance with the cease-fire and with other provisions of this agreement, in accordance with the procedures to be elaborated by it.

In order for the Commission to function, members shall assign to it appropriate units to carry out disarmament, disbanding and withdrawal from Abkhazia and to prevent illegal armed formations and groups from entering Abkhazia, in order to maintain the entire conflict zone perimeter under strict control.

Once the cease-fire is in force and troops have been deployed, the Commission shall ensure that the armed forces of the Republic of Georgia present in the conflict zone do not exceed the agreed level required for the purposes of this agreement (protection of the railway and certain other installations).

Recommendations by the Commission shall be given immediate consideration by the authorities at all levels.

Article 2

Until 10 September 1992, exchanges of detainees, hostages, prisoners and others shall take place in accordance with the principle "all for all".

Article 3

The Parties shall prohibit and prevent all terrorist acts or the taking of hostages and shall take effective steps to bring the perpetrators to justice.

Article 4

Measures shall be taken promptly to remove any impediment to the free movement of goods and services and of persons engaging in lawful activities.

The smooth and uninterrupted operation of land, air and sea communications and the protection of borders shall .be ensured accordingly.

Particular emphasis shall be placed on guaranteeing the security of relevant segments of the Transcaucasian railway through the establishment of a joint mechanism.

The Monitoring and Inspection Commission shall submit the requisite recommendations on this subject.

Article 5

Conditions shall be created for the return of refugees to their permanent homes.

Refugees will be provided with the necessary relief and assistance.

Steps will be taken to search for persons who have disappeared and to evacuate those wishing to leave Abkhazia.

Article 6

Effective measures shall be taken within the conflict zone to halt and prevent acts of violence and looting and to bring perpetrators to justice.

Article 7

The Parties shall take steps to rehabilitate affected regions and to ensure that humanitarian assistance, including international assistance, is made available to the population affected by the conflict.

The Red Cross, in consultation with the Monitoring and Inspection Commission, shall identify the procedure for the delivery and distribution of relief.

Article 8

The Parties reaffirm the need to respect international standards in the area of human rights and national minorities, to prevent discrimination based on nationality, language or religion and to hold free democratic elections.

Article 9

The armed forces of the Russian Federation which are temporarily located in the territory of the Republic of Georgia, including Abkhazia, shall remain strictly neutral and shall not take part in internal disputes.

All authorities and administrative entities in the Republic of Georgia, including Abkhazia, agree to respect the neutrality of the Russian armed forces deployed in the territory and to halt immediately all unlawful acts committed by soldiers, members of their families and military property.

Article 10

The Parties shall assist the legitimate authorities in Abkhazia to resume their normal functions by 15 September 1992.

Article 11

The authorities and administrative entities of the North Caucasian republics, regions and territories which form part of the Russian Federation shall take effective measures to halt and prevent all acts waged from their territory that are in violation of the provisions of this agreement.

They shall promote respect for this agreement and the restoration of peace in the region.

They shall take all necessary steps to explain the provisions of this agreement to the population.

Article 12

The Parties appeal to the United Nations and to the Conference on Security and Cooperation in Europe to support the principles of settlement set out above and to promote respect for them, particularly by sending fact-finding missions and observers.

Moscow, 3 September 1992

FOR THE RUSSIAN FEDERATION FOR THE REPUBLIC OF GEORGIA

Have agreed

G. s. Khizha v. G. Ardzinba T. I.Siqua

A. v. Kozyrev v. I. Zarandia T. K. Kitovani

P. s.Grachev T.Nadareishvili A.D. Chikvaidze

A. M. Mirzabekov

M. M. Magomedov B.M. Kokov

K. M. Karmokov

v.N. Saveliev

v. I. Khubiev A. K. Tleuzh

s. v. Khetagurov v. N.Diakonov

A. K. Galazov E. s.Kuznetsov

A. A.Dzharimov v. F. Choub