რას გვპირდება აღმოსავლეთის პარტნიორობა

ÓÀØÀÒÈÅÄËÏÓ ÓÔÒÀÔÄÂÉÉÓÀ ÃÀ ÓÀÄÒÈÀÛÏÒÉÓÏ ÖÒÈÉÄÒÈÏÁÀÈÀ ÊÅËÄÅÉÓ ×ÏÍÃÉ

GEORGIAN FOUNDATION FOR STRATEGIC AND INTERNATIONAL STUDIES

eqspertis azri

kaxa gogolaSvili

ras gvpirdeba aRmosavleTis partnioroba

14 2013

publikacia daibeWda amerikis SeerTebuli Statebis saelCos finansuri mxardaWeriT.

redaqtori:

rusudan margiSvili

teqnikuri redaqtori:

artem meliq-nubarovi

saavtoro uflebebi daculia da ekuTvnis saqarTvelos strategiisa da saerTaSoriso urTierTobebis kvlevis fonds. werilobiTi nebarTvis gareSe wignis arc erTi nawili ar SeiZleba gadaibeWdos nebismieri, maT Soris, eleqtronuli an meqanikuri formiT. Š saqarTvelos strategiisa da saerTaSoriso urTierTobaTa kvlevis fondi 2013 weli

ISSN 1512-4835 ISBN 978-9941-0-6133-2

xelSekrulebebi partniorobisa da TanamSromlobis Sesaxeb (PCA), romlebic ZalaSi Sevida 90-iani wlebis dasasrulidan, Seiqmna imisaTvis, rom danergiliyo myari instituciuri urTierTobebi axal damoukidebel saxelmwifoebsa (NIS) da evrokavSirs Soris. xelSekruleba warmoadgens mravlismomcvel SeTanxmebas, asocirebis xelSekrulebis (ufro zustad, `evropuli xelSekrulebebis~) `Sesustebul~ versias. SeTanxmebam Semoitana msoflio savaWro organizaciis wesebi evrokavSirsa da mis partniorebs Soris vaWrobaSi,1 xeli Seuwyo vaWrobis liberalizacias, demokratiuli institutebis Camoyalibebas da adamianis fundamenturi uflebebis pativiscemas, kanonis uzenaesobis ganmtkicebas da kargi mmarTvelobis uzrunvelyofas korufciasTan brZolis saSualebiT, saxelmwifo finansuri sistemis, fiskaluri sferosa da fulad-sakredito sistemis stabilurobis konsolidacias. xelSekrulebis debulebebis mniSvnelovani elementebi Seicavda saxelmwifoTa valdebulebebs daeaxlovebinaT vaWrobasTan dakavSirebuli sakuTari kanonmdebloba2 Acquis CommunautaireTan. partniorobisa da TanamSromlobis xelSekrulebis debulebebi aseve iTvaliswinebda evrokavSiris valdebulebebs uzrunveleyo partniori qveynis teqnikuri daxmareba da daemkvidrebina kooperaciuli instituciebi sxvadasxva donis aRmasrulebeli da sakanonmdeblo organoebiT. miuxedavad imisa, rom partniorobisa da TanamSromlobis xelSekruleba Seicavda iuridiulad savaldebulo Zlier debulebebs, man praqtikulad ver moaxerxa yofili sabWoTa sivrcis swrafad transformireba. savaraudod, amis mizezi iyo efeqturi monitoringis nakleboba da konkretuli stimulebis ararseboba partniori qveynisTvis cvlilebebis gansaxorcieleblad. amasTanave, miuxedavad imisa, rom partniorobisa da TanamSromlobis xelSekruleba Seicavda transformaciisa da modernizaciis valdebulebebs da finansur saSualebas am procesis mxardasaWerad, ar arsebobda instituciuri qmedebis doneze reformebis Catarebis detaluri `recepti~, rac aferxebda postsabWour qveynebSi xelSekrulebis ganxorcielebis procesis aqtiur monitorings. garda imisa, rom partniorobisa da 3

TanamSromlobis xelSekruleba iyo ormxrivi SeTanxmeba evrokavSirsa da partnior saxelmwifos Soris, is agreTve asaxavda evrokavSiris regionul midgomas. is yvela qveynisTvis erTi iyo. partniorobisa da TanamSromlobis xelSekrulebis xelmomweri romelime qveynis mimarT evrokavSiris mier gamoyenebuli nebismieri iniciativa an daxmarebis axali instrumenti TiTqmis avtomaturad vrceldeboda sxva qveyanazec, Tundac mas es ar daemsaxurebina. ar yofila SemTxveva, rodesac `ganviTarebis debuleba~ amoqmedebuliyo da mxareebs ewarmoebinaT molaparakebebi xelSekrulebis gasaRrmaveblad.3 praqtikulad partniorobisa da TanamSromlobis xelSekrulebebma evrokavSirsa da yofil sabWoTa saxelmwifoebs Soris urTierTobebis reJimis kristalizacia moaxdines da ar datoves dinamikuri ganviTarebis Sansi instituciur urTierTobebSi. dabolos, partniori saxelmwifoebi ver darwmundnen imaSi, rom evrokavSiri srulad ikisrebda regionSi CarTvis valdebulebas. am faqtma ganapiroba enTuziazmis Semcireba, rom yvela fasad gayolodnen evrokavSiris mier SemoTavazebul reformebis gzas. evropis samezoblo politikis (ENP), romelic inicirebulia 2003 wels, TandaTanobiT ganxorcieleba daiwyo samoqmedo gegmis miRebasTan erTad (jer, 2005 wels, _ dasavleTis axal damoukidebel saxelmwifoebsa* da zogierT xmelTaSuazRvispirel partnior saxelmwifoSi da Semdeg, 2006-2007 wlebSi, _ samxreT kavkasiis saxelmwifoebSi), ramac meti sicxade Semoitana am procesSi. SemuSavda instituciuri reformebis detaluri ganrigi, SemoiRes diferencirebis principi, rac uzrunvelyofda ufro did stimuls da Camoayalibebda axali tipis xelSekrulebebs (`samezoblo SeTanxmebebi~, romlebic unda gaformebuliyo ukeTesi progresis maCvenebel qveynebTan). amasTan dakavSirebiT evropis komisiis 2004 wlis komunikaciaSi iZleoda pirobas, rom `‌diferenciaciisa da progresulobis principebi unda damkvidrdes qveynis da/an regionis samoqmedo * Western NIS-Si igulisxmeba ukraina, moldova da belarusi. termini pirvelad swored evrokavSiris samezoblo politikis damfuZnebel dokumentebSi ixmares.

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gegmebis saSualebiT~.4 Sesabamisad, diferenciacia cxadi iyo samoqmedo gegmebis terminebidanac, romlebic SeTanxmebuli iyo sxvadasxva qveyanasTan. ukrainisa da moldovisaTvis (mag., maroko _ xmelTaSuazRvispireTSi) es iyo samoqmedo gegma, romelic unda ganxorcielebuliyo sami wlis vadaSi, xolo samxreT kavkasiis qveynebisaTvis – xuTwlian vadaSi. saqarTvelos mTavrobis mcdeloba, rom SeTanxmeba momxdariyo samwlian samoqmedo gegmaze, uSedegod dasrulda. evropis komisia ver darwmunda, rom qveyana Seasrulebda yvela dasaxul mizans, romlebic CamoTvlili iyo moqmedebis rva prioritetul sferoSi.5 orma mTavarma naklma kvlav Seaferxa axali CarCo, romelic uzrunvelyofda mniSvnelovan cvlilebebs: pirveli, evropis samezoblo politika Tavad iyo/aris dafuZnebuli mxolod politikur valdebulebebze da mis samoqmedo gegmas ar aqvs iuridiulad savaldebulo raime Zala. meore, mTeli evropuli samezoblos (xmelTaSuazRvispireTis aTi da aRmosavleT evropis eqvsi saxelmwifo) CarTva erT calke aRebul politikaSi, romelic zRudavs samoqmedo gegmebis ufro moqnilad Sedgenisa da ganviTarebis SesaZleblobebs, gegmebisa, romlebic ukeT iqneba adaptirebuli regionul (Tu ara individualur) specifikasTan. aSkara xdeboda, rom erTi da imave politikis samizneebisa da TanamSromlobis kriteriumebis dasaxva, erTi mxriv, samxreT xmelTaSuazRvispireTis qveynebTan da, meore mxriv, aRmosavleT evropasa da samxreT kavkasiasTan ar iyo adekvaturi midgoma. aRmosavleT evropis qveynebs aqvT rogorc ukeTesi Sansebi da resursebi, ise swrafi politikuri cvlilebis unari. bolos da bolos isini evropuli saxelmwifoebi da evrosabWos wevrebi iyvnen. ukanasknelma movlenebma (arabuli gazafxuli) daadastura es mosazreba _ revoluciurma procesmac ki ver moaxdina demokratiuli procesis konsolidireba maSriyi-maRribis mTel rig saxelmwifoebSi. 2006 wels evrokavSiris sabWos germanulma prezidentobam wamowia `evropuli samezoblo politika plus~-is idea, romelic Camoyalibebuli iyo sadiskusio dokumentSi `axali evropuli aRmosavluri politika~. dokumentSi wamoweuli iyo aRmosavleT evropis axali dRis wesrigi evropul samezoblo politikaSi, riTic 5

sTavazobda Sesabamis qveynebs (aRmosavleT evropuli samezoblo politikis monawile eqvsi saxelmwifo) gaZlierebul seqtorul TanamSromlobas da oficialuri urTierTobebis axal xarisxSi ayvanas. am6 ideis Semdgomi ganviTareba iyo `Savi zRvis sinergia~, romelic warmoadgina evropis komisiis Sesabamisma komunikaciam7 da romelic SeiZleba CaiTvalos evrokavSiris politikis aRmosavleTiT gaZlierebis mcdelobad. iniciativa moicavda Savi zRvis yvela qveyanas da aSkaraa, rom aseT formats ruseTis monawileobiT ver eqneboda pretenzia SesamCnev progresze regionul doneze. es mcdeloba faqtobrivad Sewyda 2008 wels kievSi Catarebuli regionuli konferenciis Semdeg. sabolood `poloneTma da SvedeTma aitaces idea `evropuli samezoblo politika-plus~ da 2008 wlis maisSi warmoadgines SeTavazeba Seqmniliyo aRmosavleT partnioroba (EaP).8 kidev erTi mtkicebuleba imisa, rom aRmosavleT partniiorobis idea gaCnda im Zalisxmevis Sedegad, romelic mimarTuli iyo aRmosavleTSi evropis samezoblo politikis qmedebebis gasaumjobeseblad, Cans evrokomisiis 2006 wlis komunikaciaSi, romelSic konkretulad weria: `…sasargeblo iqneboda, Tu moxdeboda evrokavSirisa da evropis samezoblo politikis aRmosavleT qveynebis ministrebis Sekreba9 politikuri dialogisa da evropis samezoblo politikasTan dakavSirebul saqmeebze msjelobis gasamarTavad~.10 aq SemoTavazebulma formatma safuZveli Cauyara yvelaze mniSvnelovani mravalmxrivi politikuri dialogis nairsaxeobas aRmosavlel partniorebsa da evrokavSirs Soris, romelic xorcieldeba sagareo saqmeTa ministrebis yovelwliuri Sexvedrebis saxiT aRmosavleT partniorobis (EaP) farglebSi. aRmosavleT partniorobam SesTavaza aRmosavlel partniorebs mkafio perspeqtivebi evrokavSirTan instituciuri urTierTobebis gasaRrmaveblad (asocirebis xelSekrulebebi). zogadad, aRmosavleT partnioroba (EaP) bevrad Zlier urTierTkavSirs qmnis partniorebis mxridan gaweul detalur qmedebebsa da amis Sedegad mosalodnel sargeblobas Soris. es exeba rogorc mravalmxriv, ise ormxriv formatebs. es agreTve uadvilebs samoqalaqo sazogadoebas zedamxedveloba gauwios process 6

da uzrunvelyos sazogadoebrivi mxardaWera Sesabamis mTavrobebze zewolis gansaxorcieleblad (raTa Sesruldes aRmosavleT partniorobis CarCos valdebulebebi). unda aRiniSnos, rom aRmosavleT partniorobis SemoRebiT evrokavSirma gadalaxa ucxo qveynebTan Tavisi qmedebebis ori mniSvnelovani konceptualuri sirTule: a. delikaturad Seqmna aucilebeli zRvari evrokavSiris sagareo politikis aRmosavleT da samxreT formatebs Soris, rodesac axali aRmosavluri politikis sapirwoned barselonis procesi gaaZliera `xmelTaSua zRvis kavSiris~ (UfM)11 SeqmniT, SeinarCuna ra evropuli samezoblo politika, rogorc `zeregionuli~ proeqti, romelic iTvaliswinebs evrokavSiris ZiriTadi Rirebulebebis da instituciuri sqemebis gavrcelebas orive mimarTulebiT, aseve gaxsna gza samxreTsa da aRmosavleTSi politikis miznebisa da qmedebebis diferenciaciisaTvis; b. gadaWra arCevanis problema partniori saxelmwifoebis mimarT regionul da individualur midgomebs Soris ori _ mravalmxrivi da ormxrivi _ formatis SemotaniT. aRmosavleT partniorobis mravalmxrivi formati gulisxmobs yvela partniori qveynis mimarT Tanabar mopyrobas da maTTvis sruli monawileobis SeTavazebas Tematuri platformebis, mowinave iniciativebis, panelebis da aRniSnul formatebSi Seqmnili sxvadasxva proeqtis muSaobaSi. is agreTve iTvaliswinebs mWidro politikur dialogs, sadac Tanabrad CaerTveba yvela monawile. diferencireba da individualuri midgoma ukve srulad gamoiyeneba ormxriv formatSi: ukrainam unda moaweros xeli, xolo moldovam da saqarTvelom unda moaxdinon asocirebis SeTanxmebis (AA) parafireba vilniusSi (27 noemberi, 2013). belarusi rCeba mravalmxriv formatSi, somxeTi da azerbaijani ki aseve imuSaveben ormxrivi formatis safuZvelze, magram SezRuduli masStabiT.12 zemoT aRweril samive politikis instituciur CarCosTan erTad evrokavSiris midgomaSi jer kidev miRebulia `regionuli standartizaciis~ tendencia. `evrokavSirs surs rogorme moaxdinos Tavisi politikis standartizacia 7

mTel regionTan dakavSirebiT da mas ar unda, rom zogma partniorma zedmeti privilegia igrZnos~.13 jerjerobiT es miiCneva marTebul midgomad, magram SesaZloa didxans ar gagrZeldes, radgan, savaraudod, axlo momavalSi regionis qveynebs (aRmosavleT evropa) Soris aSkara civilizaciuri gaxleCa gamovlindeba. evrokavSiri, rogorc usafrTxoebis aqtori skeptikosebi arasodes miiCnevdnen evrokavSirs seriozul politikur an usafrTxoebis aqtorad. evrokavSiris deklaraciebi da qmedebebi xSirad winaaRmdegobrivi xasiaTisaa. es ase iyo erayTan da Tundac kosovosTan dakavSirebiT, sadac Tanxmoba yvela wevr saxelmwifos Soris arasodes miRweula. jer kidev ar aris SeTanxmeba TurqeTis wevrobasTan dakavSirebiT, xolo ruseTTan urTierToba didi xania urTierTsawinaaRmdego mosazrebebis sagania. miuxedavad 2003 wels miRebuli evrokavSiris usafrTxoebis strategiisa, romelSic weria: `Cven axla unda gamoviCinoT Zlieri da ufro aqtiuri interesi samxreT kavkasiis problemebze, romelic Tavis droze aseve gaxdeba mezobeli regioni~,14 evrokavSiri mainc yovelTvis sifrTxiliT ekideba Tavis, rogorc usafrTxoebis aqtoris CarTvas ruseTis aSkarad gamoxatuli interesebis am sferoebSi. mas arasodes ucdia Suamavloba samxreT kavkasiis konfliqtebSi, monitorebis ganlageba Tu daxmareba saqarTvelos an regionis sxva saxelmwifoebis usafrTxoebis seqtoris gamyarebaSi. rogorc Cans, evrokavSirs hqonda Zlieri interesi da amdenad iqceoda erTgvari SefarebiT, mxars uWerda saerTaSoriso (gaeros, euTos) Zalisxmevas, afinansebda ekonomikur ganviTarebas, xels uwyobda ndobis ganmtkicebisa da reabilitaciis proeqtebs regionSi. evrokavSiris cvalebadi saxe ruseTi yovelTvis fxizlad adevnebs Tvalyurs evrokavSiris farul gegmebs samxreT kavkasiis regionTan dakavSirebiT da warmatebiT blokavs evropis mcdelobebs, iqonios iq Zlieri gavlena. magaliTad, ruseTma SeZlo 8

Seeferxebina evrokavSiris energetikuli usafrTxoebis proeqtebi. evrokavSirs, romelic dainteresebulia aRmosavleT evropis saxelmwifoebTan urTierTobebis ganviTarebiT, ar eyo gambedaoba isini specialuri TanamSromlobis CarCoSi moeqcia. evrokavSirma isini ubralod CarTo evropul samezoblo politikaSi, romelic Seqmnili iyo evropuli da xmelTaSuazRvispireTis regionis 16 qveynisTvis, saqarTvelos CaTvliT. evropuli samezoblo politika ar laparakobda raime evropul gegmaze an Tundac Tavisufal vaWrobaze an uvizo urTierTobis perspeqtivebze am qveynebTan. ukanasknelma orma-samma welma aCvena evrokavSiris cvalebadi saxe. rigi efeqturi erToblivi moqmedebebisa libiaSi da konsolidirebuli politika siriis krizisTan dakavSirebiT amis yvelaze naTeli magaliTebia. miuxedavad ekonomikuri krizisisa, evrokavSiri ganagrZobs Tavisi sagareo da usafrTxoebis politikis gaRrmavebasa da konsolidirebas. sainteresoa, rodis moxda es cvlileba pirvelad? vfiqrob, 2008 wlis omi saqarTveloSi iyo mniSvnelovani wyalgamyofi Zvelsa da axal evrokavSirs Soris. gasaocaria, rom imdroindelma evropuli sabWos Tavmjdomarem nikola sarkozim miiRo moqmedebis mandati 27 wevri saxelmwifos saxeliT da daiwyo Suamavloba cecxlis Sewyvetis SeTanxmebaze saqarTvelosa da ruseTs Soris omis dawyebidan sami dRis Semdeg. 12 agvistos (ruseTis 4-dRiani masobrivi Tavdasxmebis Semdeg) evrokavSiris sabWos Tavmjdomarem daasrula cecxlis Sewyvetaze molaparakeba moskovsa da Tbiliss Soris, riTic praqtikulad SeaCera ruseTis mcdeloba aeRo saqarTvelos dedaqalaqi da aq legitimuri mTavroba Zalis gamoyenebiT Seecvala. evrokavSiris SuamavlobiT miRweulma SeTanxmebam Teoriulad gaabaTila saqarTvelos arasadavo teritoriebze ruseTis SeWris politikuri Sedegebi da Seqmna safuZveli konfliqtis Semdgomi mogvarebisTvis. `6-punqtiani SeTanxmeba~ da misi ganxorcielebis gegma, romelic mogvianebiT SemuSavda, gansakuTrebul rols aniWebda evrokavSirs _ mas mieca saqarTvelos teritoriaze 200 monitoris gagzavnis ufleba. ruseTma mogvianebiT daarRvia SeTanxmeba, roca afxazeTi 9

da samxreT oseTi calmxrivad gamoacxada damoukidebel respublikebad, am regionebSi datova mniSvnelovani samxedro kontingenti da SezRudvebi dauwesa saerTaSoriso damkvirveblebis (evrokavSiris monitorebis CaTvliT) funqcionirebas okupirebul teritoriebze.15 `evropuli misiis~ am praqtikuli marcxis miuxedavad, evrokavSirma SeinarCuna aqtiuri roli da darCa saqarTvelos damoukideblobisa da suverenobis erTguli mxardamWeri. pirveli seqtembris riggareSe sesiisa da Semdgomi qmedebebis _ 2008 wlis oqtomberSi ori erToblivi sarCelis miRebis _ Sedegad dadginda evrokavSiris sadamkvirveblo misia da dainiSna saqarTvelos krizisis specialuri warmomadgeneli.16 evrokavSirma aseve daaCqara `Jenevis molaparakebaTa~ formatis Seqmna da misi TanaTavmjdomareobac ikisra. 2008 wlis 22 oqtombers evrokavSirma (msoflio bankTan TanamSromlobiT) moawyo donorebis didi konferencia, romlebmac Tavis mxriv aiRes mniSvnelovani valdebuleba (4,5 miliardi aSS dolari) omis Semdgom qveynis ekonomikis gadasarCenad.17 magram es ar iyo yvelaferi, rac evrokavSirma saqarTvelosTvis gaakeTa. omma da ruseTis Tavxedurma saqcielma, mcdelobam eCvenebina, rom is iyo aRmosavleT evropis `batonpatroni~, biZgi misca evrokavSirs gadaedga mkvidri nabijebi aRmosavleTisken. imave evrokavSiris riggareSe sabWom ori mniSvnelovani gadawyvetileba miiRo: `...ufro maRal safexurze aeyvana Tavisi urTierTobebi saqarTvelosTan, rac gulisxmobda savizo reJimis gamartivebis zomebs da sruli da yovelmxrivi Tavisufali vaWrobis zonis SesaZlo Seqmnas, rogorc ki Sesabamisi pirobebi Seiqmneboda~ da rom `axla, rogorc arasdros, saWiro iyo mxari daeWiraT regionuli TanamSromlobisTvis da erTi safexuriT maRla aeyvanaT misi urTierTobebi aRmosavlel mezoblebTan samezoblo politikis meSveobiT, mxari daeWiraT Savi zRvis sinergiis iniciativisTvis da `aRmosavleT partniorobisaTvis~, romlis damtkicebac evrokavSiris sabWos 2009 wlis martSi aqvs ganzraxuli~.18

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axali xana es faqtobrivad evrokavSiris Ria pasuxi iyo ruseTis agresiaze aRmosavleT evropaSi da mas Semdeg evrokavSirs aRarc daumalavs Tavisi mniSvnelovani ambiciebi am regionis mimarT. aRmosavleT partniorobis dawyebiT 2009 wlis maisSi, romelsac mohyva molaparakebebi asocirebis SeTanxmebaze aRmosavleT evropis yvela saxelmwifosTan (belarusis garda) aRiniSna axali xanis dasawyisi mTeli evropisaTvis. aRmosavleT partnioroba gaxda mniSvnelovani instrumenti ekonomikuri da politikuri TanamSromlobis gaRrmavebis saqmeSi, aseve _ usafrTxoebis uzrunvelyofa regionSi. garda myari TanamSromlobis ganrigisa da mravalmxrivi da ormxrivi formatebis instrumentebisa, politikuri daaxloveba sagareo saqmeTa ministrebs Soris, romelic konsultaciebis adreul periods gadis, da saxelmwifoebisa da mTavrobebis meTaurebis Sexvedrebi, romlebic ewyoba yovel or weliwadSi erTxel, gadaaqcevs aRmosavleTis partniorobas regionuli gaerTianebis ambiciur proeqtad. wlebis win qarTvelebi fiqrobdnen, rom qveyanas SeeZlo SeemuSavebina evrokavSirSi integraciis damoukidebeli ganrigi. es rwmena gaRvivda, rodesac evrokavSirma SemoiRo `diferencirebis principi~ TanamSromlobis CarCoebSi (evropis samezoblo politika da Semdeg aRmosavleT partnioroba) da gadavida wminda regionuli midgomidan individualur (rogorc fiqrobdnen) midgomebze yvela partnior qveyanasTan. Tumca male aSkara gaxda (rogorc ukve aRvniSneT), rom iseTi didi moTamaSisTvis, rogoric evrokavSiria, romelsac Sorsgamiznuli, farTo masStabis interesebi aqvs, daaxloebis calke ganrigis Seqmna saqarTvelosnairi patara saxelmwifoebTan ararealisturia. magaliTad SeiZleba moviyvanoT somxeTi, romelmac TiTqmis garantirebulad miiRo igive perspeqtivebi, rogorc saqarTvelom (asocirebis SeTanxmeba, Tavisufali savaWro zonis SeTanxmeba, vizebis gamartiveba) ise, rom mas arc uaruyvia Tavisi gegmebi SeerTeboda ruseTis sabaJo kavSirs (romelic SeuTavsebelia evrokavSiris Tavisufali savaWro zonis arsTan).19 11

meore mxriv, saqarTvelo, moldovasTan erTad, ufro swraf gzaze dgas sxva partnior qveynebTan SedarebiT (radgan ukrainasTan dakavSirebiT situacia gaurkvevelia) da ufro adre miiRebs zemoT aRniSnul SesaZleblobebs. saqarTvelos SeTanxmeba evrokavSirTan vizebis gamartivebis Sesaxeb ZalaSia 2011 wlidan da man SeiZleba miiRos uvizo reJimi or weliwadSi. asocirebis SeTanxmebas, romlis parafirebac moxdeba vilniusSi 28 noembers (aseve moldovasTan), SesaZloa xeli moeweros 2014 wels. Tavisufali savaWro sivrcis (DCFTA) debulebebi savaraudod ZalaSi Seva 2015 wlidan (wevri saxelmwifoebis parlamentebis mier winaswari ratificirebis gareSe, pirdapir evrokavSiris sabWos gadawyvetilebiT).20 es niSnavs, rom saqarTvelom SesaZloa or weliwadSi miiRos `oTxive Tavisufleba~ evrokavSirTan. saqarTveloSi fiqroben, rom es iqneba Zlieri wingadadgmuli nabiji `funqciuri integraciisken~ evropis ekonomikur arealSi da seriozuli stimuli qveyanaSi evropuli investiciebisTvis. evrokavSiris zogi skeptikosi eqspertis mosazrebis miuxedavad, romlebic daJinebiT moiTxoven, rom evropulma instituciebma ar unda gamoiwvios investiciebis gadineba partnior qveynebSi, aman SeiZleba ar gaaCeros evropeli mewarmeebi TavianTi biznesis gafarToebis saqmeSi, rac saqarTvelos mimzidvel qveynad aqcevs.

SesTavaza aRmosavleT partniorobam saqarTvelos sxva, gansakuTrebuli stimuli? advili SesamCnevia, Tu rogor exmareba aRmosavleT partnioroba qveynis evropeizacias sakanonmdeblo, maregulirebeli da institucionaluri reformebis xelSewyobiT. wina SesaZleblobebTan SedarebiT, aRmosavleT partniorobam Semoitana raRac axali, ramac saqarTvelos Semata rwmena evrokavSirTan daaxloebis axal perspeqtivebTan dakavSirebiT da aseve misca am procesis praqtikuli sargebeli. aRmosavleT partniorobam xelSesaxebi Sedegi moitana, rac aisaxa saqarTveloSi xelisuflebis pirvel mSvidobian konstituciur cvlaSi (romlis Sedegad biZina ivaniSvili da misi koalicia `qarTuli ocneba~ movida xelisuflebaSi). aman gamoiwvia saintereso viTareba: mixeil saakaSvilis mTavroba, romelic yovelTvis Riad acxadebda Tavis dasavlur orientacias, ar iyo 12

Zalian qmediTi maregulirebel reformebTan dakavSirebiT evropuli rekomendaciebis dakmayofilebaSi. amis Sedegad molaparakebebis dawyeba Tavisufal savaWro sivrcis Sesaxeb Seferxda, sul mcire weliwad-naxevriT. am gaugebari qcevis mizezi iyo eWvi, ramdenad gadawonida evropuli reformebis Rirebuleba moklevadian sargebels. wina xelisuflebas sjeroda, rom axali regulaciebi gazrdida wnexs biznesze, rac Seamcirebda saqarTveloSi investirebis stimuls.

Tumca axalma mTavrobam, romelic warmaodgens partiebis koalicias, romelTagan zogi ar aris aSkara prodasavluri ideis matarebeli, uyoymanod daiwyo evrokavSiris yvela moTxovnili maregulirebeli cvlilebis ganxorcieleba! ra Tqma unda, aseTi cvlilebebi ar ukavSirdeba axali mTavrobis evropuli perspeqtivisadmi erTgulebas, magram faqtia, rom aRmosavleT partniorobisa da yvela misi komponentis upiratesobebi ufro TvalsaCino gaxda. axali mTavrobisTvis ufro advili aRmoCnda myisierad CaWideboda maT mier danaxul erTaderT pragmatul da imedismomcem arCevans – intensiurad CarTuliyo aRmosavleT partniorobis procesSi.

gayinuli konfliqtebi

aRmosavleT partnioroba pirdapir ar gulisxmobs konfliqtis gadaWras, Tumca axalma ambiciam da evrokavSiris mimarT valdebulebebma saSualeba misca mas ufro intensiurad ganexila es problema. evropis sagareo qmedebebis samsaxuri (European External Action Service), evrokavSiris axali superstruqtura, romelic myarad moTavsda evropis komisiasa da wevr saxelmwifoebs Soris, CarTulia gayinuli konfliqtebis mogvarebis saqmeSi aRmosavleT evropis regionSi. misi CarTuloba saqarTveloSi ar Semoifargleba sadamkvirveblo misiiT (EUMM) an specialuri warmomadgenliT (EUSR); is aseve aqtiuradaa CarTuli saerTaSoriso organizaciebTan muSaobaSi, awarmoebs ormxriv konsultaciebs mesame qveynebTan, raTa xeli Seuwyos (ruseTis Zalisxmevis sapirispirod) afxazeTisa da samxreT oseTis _ ruseTis mier okupirebuli saqarTvelos teritoriebis _ damoukideblobis araRiarebas.

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Sesabamisi samsaxurebis meSveobiT evrokavSiri politikur dialogs awarmoebs ruseTis federaciasTan, sadac saqarTvelos problema xSirad ganixileba. 2009 wels evrokavSiris politikisa da usafrTxoebis komitetma miiRo `araRiarebisa da CarTulobis politika~ saqarTvelos okupirebuli regionebis mimarT.21 am politikis mizania SeaCeros aRniSnuli regionebis ekonomikuri da socialuri izolacia saerTaSoriso sazogadoebisgan, CarTos isini vaWrobasa da TanamSromlobaSi da am teritoriebis macxovrebelTaTvis gaxsnas ruseTis garda sxva qveynebSi mogzaurobis saSualeba. evrokavSiris instituciebSi fiqroben, rom am midgomiT es regionebi nakleb damokidebuli iqnebian ruseTze da metad integrirebuli danarCen msofliosTan. amis Sedegad saqarTvelosTan dakavSirebiTac naklebi iqneba ideologiuri gansxvaveba. amis Semdeg evrokavSirma mosTxova saqarTvelos mTavrobas Seerbilebina kanoni `okupirebul teritoriebTan~ dakavSirebiT, romelic Seexeboda mesame saxelmwifos Tanamoqalaqeebis gadaadgilebas afxazeTsa da samxreT oseTSi. axali mTavroba gamoexmaura evrokavSiris moTxovnebs da Sesabamisi cvlilebebi Seitana kanonSi. magram saqarTvelos moqalaqeTa umetesoba, zogadad, ar eTanxmeba evrokavSiris midgomas da miiCnevs, rom saxelmwifos suverenuli uflebebi ziandeba, Tuki mis sazRvrebze sustdeba gadaadgilebaze oficialuri kontroli. rTulia Seafaso aRmosavleT partniorobis roli mTlianobaSi, Tu ramdenad efeqtiani da Sedegismomcemia, Tumca es SesaZlebeli iqneba, Tuki mis or ganzomilebas cal-calke ganvixilavT. mravalmxrivma formatma, romelic mimarTuli iyo aRmosavleT partniorobis qveynebs Soris TanamSromlobis ganviTarebisken, veranairi praqtikuli Sedegi ver moitana. ar arsebobs mniSvnelovani saerTo proeqtebi, yvela an Tundac ramdenime, aRmosavleT partniori saxelmwifos monawileobiT. `Tematuri platformis~ Sexvedrebi da sapanelo diskusiebi mowinave iniciativebis Sesaxeb ufro metad hgavs sajaro mosamsaxureebis trenings, romlebic iReben gakveTilebs evropeizaciis gzebze. aqamde Cven ar gvsmenia raime mniSvnelovani gadawyvetilebis Sesaxeb, romelic miiRes aRmosavleT partniorobis ministrebis 14

Sexvedraze an, Tundac, ori wlis win varSavaSi Catarebuli samitis dros. aRmosavleT partniorobis mravalmxrivi formati, upirveles yovlisa, emsaxureba partniori qveynebis socializacias evrokavSirTan, maT daaxloebas, CarTvas koleqtiur muSaobaSi da ormxrivi pasuxismgeblobebiT savse erTianobis grZnobis gaRvivebas. es albaT mniSvnelovania, Tumca, realurad, ar arsebobs xelSesaxebi Sedegi, romelic aixsneboda praqtikuli sargeblis TvalsazrisiT. Znelia es `mihyido~ aRmosavleT partniorobis qveynebis mosaxleobas. gansakuTrebiT rTulia aseTi TanamSromlobis upiratesobis axsna qarTveli mosaxleobisTvis, radgan maTi yuradReba fokusirebulia moklevadian problemebze, rogoricaa socialuri mdgomareoba, ekonomikuri stagnacia, mougvarebeli konfliqtebi, ltolvilebi, dakarguli teritoriebi, okupitrebuli teritoriebidan momavali usafrTxoebis problemebi da a.S. rogorc Cans, aRmosavleT partniorobis mravalmxrivi formati ver Seitans wvlils saqarTveloSi romelime zemoxsenebuli problemis gadaWraSi. rac Seexeba ormxriv formats (saqarTvelo da evrokavSiri), kidev ufro meti ram unda iqnes gaTvaliswinebuli, rac realur upiratesobas moitans mokle da saSualovadian perspeqtivaSi. saqarTveloSi aseTi TanamSromlobisadmi interesi da sazogadoebis mxardaWera ufro maRalia, vidre mravalmxrivi formatis SemTxvevaSi. bunebrivia, saqarTvelos mTavroba ufro metad asajaroebs aRmosavleT partniorobis ormxriv formats, vidre mravalmxrivs. ormxrivi formati, upirveles yovlisa, Seexeba qveynisTvis konkretul dapirebebs da uzrunvelyofs evrokavSiris uSualo mxardaWerasa da CarTulobas. aRmosavleT partniorobis ormxrivi formati damyarebulia evropul samezoblo politikaze, magram `evrokavSiris zedamxedveloba qarTul reformebze~ gadaiqca namdvil ormxrivad sasargeblo TanamSromlobad. saqarTveloSi afaseben aRmosavleT partniorobas iseTi dapirebebis gamo, rogoricaa Rrma da yovlismomcveli Tavisufali savaWro zonis Seqmna evrokavSiris Sida bazarze gamartivebuli wvdomiT qarTuli saqonlisa da momsaxurebisTvis, adamianebis Tavisufali gadaadgileba, mniSvnelovani politikuri 15

dialogi, evropis usafrTxoebisa da Tavdacvis politikis (ESDP) saqmeebSi TanamSromloba, evrokavSiris programebsa da organoebSi monawileoba da bevri sxva. aseve sainteresoa, rom urTierTobebSi nebismieri axali progresi da misi Sedegebi miewereba aRmosavleT partniorobas. magaliTad, vizis liberalizaciis Sesaxeb molaparakeba damoukidebeli procesi iyo iseve, rogorc `Ria cis~ SeTanxmeba (romelic Seexeba sahaero transportis regulaciebis liberalizacias) an SeTanxmeba geografiuli maCveneblebis dacvis Sesaxeb, magram, rogorc Cans, TanamSromlobis yvela mniSvnelovani formati aRmosavleT partniorobam `gadaylapa~. saqarTvelos mosaxleobis daaxloebiT 80 procenti evropuli integraciis momxrea, magram verc erTma qarTulma mTavrobam, verc yofilma da verc axlandelma, ver SeZlo daerwmunebina evropuli komisiis momlaparakebeli gundi, rom qveynisTvis `evropuli perspeqtivis~ aRiareba, rogorc debuleba, CaerToT ukve molaparakebuli asocirebis SeTanxmebis preambulaSi. sinamdvileSi, amas ara aqvs gadamwyveti mniSvneloba, radgan farTo sazogadoebaSi izrdeba Segneba imisa, rom saqarTvelo gaxdeba evrokavSiris wevri, roca is amisTvis mzad iqneba; am procesis dasaCqareblad saWiro ar iqneba, rom SeTanxmebaSi raime Canaweri gakeTdes.

SeniSvnebi da gamoyenebuli wyaroebi 1 arc erTi yofili sabWoTa saxelmwifo, romelic evrokavSirTan awarmoebda molaparakebas SeTanxmebaze partniorobisa da TanamSromlobis Sesaxeb 1990-iani wlebis Sua periodSi, am droisTvis ar yofila msoflio savaWro organizaciis wevri. evrokavSiri Seecada msoflio savaWro organizaciis wesebis eqstrapolirebas am qveynebisTvis ormxriv formatSi da amgvarad Seeqmna samarTliani da prognozirebadi garemo, aseve instituciurad moemzadebina partniori qveynebi msoflio savaWro organizaciis wevrobisa da maTi integrirebisTvis saerTaSoriso savaWro sistemaSi. 2 cneba `vaWrobasTan dakavSirebuli~ SefardebiTia, radgan is Seexeba TiTqmis yvela maregulirebel sferos kompaniebis Sesaxeb kanonmdeblobisa da finansuri regulaciebis, SromiTi kanonmdeblobis, saerTo produqtis usafrTxoebis, energetikis, transportisa da garemos dacvis CaTvliT. 16

3 2000-iani wlebis dasawyisSi ukrainam evrokavSirisgan moiTxova konsultaciis dawyeba Tavisufali savaWro zonis Sesaxeb SesaZlo SeTanxmebasTan dakavSirebiT, magram evrokavSirma uari Tqva am moTxovnaze 4 farTo evropa _ samezoblo: Cvens aRmosavleT da samxreT mezoblebTan urTierTobis axali CarCo, evrokavSiris sabWos, evrokomisiisa da evroparlamentis komunikacia, briuseli, 11.03.2003, gv.

16. ix. vebgverdze: http://eeas.europa.eu/enp/pdf/pdf/com03_104_en.pdf 5 ix. evrokavSiri-saqarTvelos evropuli samezoblo politikis samoqmedo gegma. ix. vebgverdze: http://ec.europa.eu/world/enp/pdf/action_plans/georgia_enp_ap_final_en.pdf 6 COM 2007 (160)-is daskvniTi, miRebuli 11.04.2007. ix. vebgverdze: http://eur-lex.europa.eu/LexUriServ/LexUriServ. do?uri=COM:2007:0160:FIN:ES:PDF 7 Irene Hahn, The Eastern Dimension of the Neighborhood Policy: European Ambitions, DGAP analysis, August 2011 N° 2, p. 45. ix. vebgverdze: https:// dgap.org/sites/default/files/article_downloads/2011-02_DGAPana_EU_www.pdf 8 es termini asaxavs aRmosavleT evropis igive eqvs saxelmwifos saxelwodebiT `aRmosavleli partniorebi aRmosavleT partniorobis (EaP) dokumentebSi~.

9 ix.: vebgverdze: http://ec.europa.eu/world/enp/pdf/com06_726_en.pdf 10 ix. vebgverdze: www.eeas.europa.eu/euromed/index_en.htm 11 somxeTi gamoeTiSa molaparakebebs asocirebis SeTanxmebis Taobaze, xolo azerbaijans ara aqvs perspeqtiva asocirebis SeTanxmebis xelmowerisa, sanam is distancirebulia msoflio savaWro organizaciis wevrobidan.

12 Katarzyna Pelczynska-Nalecz, ”Integration or Imitation? EU Policy towards its Eastern Neighbours,” Notte de l’fri, May 2011, p. 31. Available at: www.osw.waw. pl/sites/default/files/1.1_Katarzyna_Nalecz_0.pdf 13 A Secure Europe in a Better World. European Security Strategy, Brussels, December 12, 2003.

14 ix. vebgverdi: http://english.pravda.ru/news/world/24-12-2009/111377eu_monitors_russia_disobedience-0/ 15 ix. vebgverdi: http://eumm.eu/en/eu_in_georgia/eu_special_representative_for_the_south-caucasus 16 ix. vebgverdi: http://eeas.europa.eu/georgia/conference/index_en.htm 17

17 12594/2/08 REV 2, p. 3. ix.: vebgverdze: www.consilium.europa.eu/ ueDocs/cms_Data/docs/pressData/en/ec/102545.pdf 18 somxeTi axlos iyo asocirebis SeTanxmebis inicirebasTan vilniusSi 28 noembers, magram oficialurma gancxadebam misi arCevanis Sesaxeb, romelic man ruseTis sabaJo kavSiris sasargeblod gaakeTa, qveyanas Sansi aRar dautova.

19 filip kiusonma, evrokomisiis mTavarma momlaparakebelma Tavisufali savaWro sivrcis sakiTxebze, Tavis interviuSi “EU-Georgia Trade Insight�-Tan brZana, rom DCFTA winwsrebiT Seva ZalaSi, radgan, asocirebis SeTanxmebis politikuri da instituciuri TanamSromlobis debulebebisgan gansxvavebiT, is ar saWiroebs ratificirebas evrokavSiris wevri saxelmwifoebis parlamentebis mier. ix.: http:// eeas.europa.eu/delegations/georgia/documents/newsletters/20131023_trade4_ en.pdf 20 ix. vebgverdi: www.iss.europa.eu/activities/detail/article/non-recognitionand-engagement-the-eus-policy-towards-abkhazia-and-south-ossetia/

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