International armed conflict between Georgia and the Russian Federation

Historical Background

Origins and context

After independence in 1991, Georgia faced secessionist conflicts in South Ossetia and Abkhazia, leading to deaths, displacement and the establishment of de facto separatist authorities. Ceasefire arrangements ended the early wars, but both territories remained outside effective Georgian control.

Georgia’s application for NATO membership

Georgia developed relations with the North Atlantic Treaty Organization (NATO) after independence and stated its membership aspiration in 2002. Cooperation expanded after 2008, though Georgia had not joined by June 2026.

The August 2008 conflict

Heavy fighting involving Georgian and South Ossetian forces led to Russian military intervention. The fighting soon involved Russian, Georgian, South Ossetian, and Abkhaz forces and forced Georgian forces to retreat. After the signing by Georgia and Russia of the ceasefire agreement mediated by the European Union (EU), Russia concluded cooperation treaties with both breakaway regions that would serve as a basis for the many subsequent bilateral agreements.

Declaration of Independence of Abkhazia and South Ossetia and subsequent lack of international recognition

Russia recognized Abkhazia and South Ossetia after the 2008 conflict, but international recognition remained exceptionally limited. The move was condemned by the European Union and the Organization for Security and Co-operation in Europe (OSCE).

‘Borderization’ of administrative boundary lines and incidents of violence

‘Borderization’ of Abkhazia and South Ossetia, namely the process of cordoning off the separatist regions, restricted movement, affected livelihoods, and increased detention risks. Violence against ethnic Georgians continued.

Reinforcement of Russian control and progressive integration into Russia

Russia entrenched military, political, and economic control of the breakaway regions through troop presence, border control, and the widespread granting of Russian citizenship.

Persistent internal displacement

Conflict and occupation remain major drivers of displacement, with no significant progress on returns.

International and regional initiatives

Georgia brought several cases before the European Court of Human Rights (ECtHR). The European Union established the EU Monitoring Mission in Georgia and the Independent International Fact-Finding Mission on the Conflict in Georgia (IIFFMCG), while the Incident Prevention and Response Mechanism (IPRM) produced limited security and humanitarian engagement. The International Criminal Court (ICC) issued arrest warrants that remain pending. Georgia’s process of accession to the European Union effectively came to a halt in 2024.

Key Developments (2023–2026)

The reporting period saw several major developments:

1. Partial normalization between Georgia and Russia

Russia restored visa-free travel for Georgian citizens and direct flights in 2023, signalling partial normalization despite the absence of formal diplomatic relations.

2. ‘Foreign agent’ bill and related protests, and contested Georgian parliamentary election results

The ruling party in Georgia, Georgian Dream, advanced the foreign agent bill despite widespread protests and international backlash. The 2024 parliamentary elections marked a further shift towards Russia and increasingly authoritarian conduct.

3. Reinforcement of relations between Abkhazia and Russia, and related tensions

Abkhazia’s ties with Russia deepened through discussion of possible association with the Russia-Belarus Union State, plans for a permanent Russian naval base in Ochamchire, and renewed transport links, including flights to Sukhumi. Georgia and the European Union criticized these developments as further consolidation of Russian authority over occupied territory.

4. South Ossetia’s attempted annexation by Russia

South Ossetia’s integration with Russia advanced through renewed annexation discussions and a 2026 treaty expanding cooperation in defence, security, foreign policy, border policy, legal alignment, and economic movement. Subsequent political appointments and agreements further incorporated South Ossetia into the Russian legal and institutional framework.

5. Persistence of ‘borderization’ and incidents of violence, and subsequent condemnation of Russia

‘Borderization’ and violence against ethnic Georgians persisted, including restrictions on movement, surveillance infrastructure, unlawful detention, ill-treatment and killings. The ECtHR held Russia responsible for systematic violations.

6. Continuation of the international and regional initiatives and their stalemate

The IPRM continued without political breakthrough, while the United Nations General Assembly reaffirmed the right of return of internally displaced persons and refugees.