International armed conflict between Georgia and the Russian Federation

Historical Background

Origins and context

Following Georgia’s independence in 1991, armed conflicts with separatist forces in South Ossetia and Abkhazia caused thousands of deaths and large-scale displacement, and left both territories under separatist de facto authority. South Ossetia declared independence during the 1991–92 hostilities, which ended in 1992 with the deployment of joint peacekeeping forces that included Russian troops. Abkhazia fought Georgia in 1992–94 and pursued independence with the fighting ending in 1994 under the ‘Moscow Agreement’, which also provided for the deployment of peacekeepers. Between 1993 and 2008, the United Nations (UN) Security Council repeatedly reaffirmed Georgia’s sovereignty and territorial integrity.

2008 hostilities and ceasefire

After renewed heavy fighting between Georgian and South Ossetian forces, Russian troops entered South Ossetia on 8 August 2008, with the fighting expanding to include Georgian, Russian, South Ossetian and Abkhaz forces. Russian forces moved beyond South Ossetia’s traditional boundaries, conducted strikes near the Georgian capital, and defeated Georgian forces. They consolidated their position in South Ossetia and Abkhazia, effectively controlling the entire region. A European Union (EU)-mediated ceasefire was signed on 12 August 2008.

Recognition and subsequent control

After the conflict, Abkhazia and South Ossetia reiterated independence claims and Russia recognized both as independent States on 26 August 2008. The move was condemned by the EU and the Organization for Security and Co-operation in Europe (OSCE) and supported by only a very few States. Russian troops have remained present since 2008 under treaties permitting military bases. In parallel, Russia has increased its military, political and economic control, including through the signing of alliance treaties with Abkhazia in 2014 and South Ossetia in 2015.

Key Developments (2023–2025)

The reporting period saw several major developments:

1. Discussions over South Ossetia annexation: In late March 2022, the de facto leader of South Ossetia, Anatoly Bibilov, announced the intention of the breakaway region to join the Russian Federation following local presidential elections. A referendum on annexation was initially scheduled for mid-June 2022, but the newly elected de facto president, Alan Gagloev, subsequently cancelled the vote, citing uncertainty regarding the legal consequences of submitting the issue to a referendum. However, renewed discussions on joining the Russian Federation took place in March 2024 .

2. Abkhazia independence stance: In April 2022, Abkhaz de facto authorities reaffirmed their stated objective of securing independence for the breakaway region. Since then, Abkhazia, and in particular the local population, has continued to express its desire for independence.

3. Partial normalization between Georgia and Russia: In May 2023, Russia restored visa free travel for Georgian citizens and lifted its ban on direct flights, after which Georgian Airways resumed services. Russian nationals are allowed to entry without a visa and work rights for one year under Georgian law, despite the absence of diplomatic relations.

4. Foreign agent bill and contested elections: A “foreign agent” bill, which was proposed in 2023, withdrawn after protests, reintroduced and passed in 2024, with the presidential veto overridden, entered into law in March 2026. In October 2024, the ruling party retained power amid allegations of intimidation, coercion and ballot manipulation, while opposition actors denounced the outcome as a “constitutional coup”.

5. International and regional initiatives and their stalemate: In 2025, the Geneva International Discussions and the Ergneti mechanism continued without political breakthrough, with the various stakeholders maintaining their respective positions.