Adapted Conventional Armed Forces in Europe Treaty - Linkage Between Russia's Withdrawal and NATO's Ratification

Linkage Between Russia's Withdrawal and NATO's Ratification

In the run-up to the OSCE’s 1999 Istanbul summit, NATO members were concerned by three treaty compliance problems. First of all, they emphasized that the continuing existence of Russian equipment holdings in the "flank" region were well in excess of agreed Treaty limits. Secondly, they were opposed to a Russian military presence in Georgia - a presence which was beyond the level authorised by the Georgian authorities. Thirdly, they were concerned about the Russian military presence in Moldova which lacked the explicit consent of the Moldovan authorities. NATO members insisted on a package of measures designed to address these issues.

During the summit, 30 OSCE member states - including NATO member states and Russia - signed the adapted CFE treaty. Russia agreed to withdraw from the Republic of Moldova, reduce her equipment levels in Georgia and agree with the Georgian authorities on the modalities and duration of the Russian forces stationed on the territory of Georgia, and reduce their forces in the flanks to the agreed levels of the Adapted CFE Treaty. These agreements became known as the "Istanbul Commitments" and are contained in 14 Annexes to the CFE Final Act and within the 1999 Istanbul Summit Declaration.

Concerning Moldova, the Declaration states that CFE states-parties "welcome the commitment of the Russian Federation to complete withdrawal of the Russian forces from the territory of Moldova by the end of 2002" (emphasis added). Russia, while fulfilling the other obligations, steadily denied since 2002 that it ever made a clear commitment to withdraw its troops, but Russia did withdraw 58 trainloads of equipment and ammunition from Transdniestria. No further withdrawals have occurred since 2004. Russia argues that it has fulfilled all of its obligations by signing the agreements with Georgia to close the Batumi and Akhalkalaki bases and withdraw the Russian troops stationed there by the end of 2008. As long as not all troops are withdrawn from Georgia and Moldova, NATO members refuse to ratify the treaty. This includes the dismantling of the one remaining base (after 2008) in Georgia: the Gudauta base located in Abkhazia. This has been viewed as an attempt to postpone ratification. Abkhazia is a de facto independent break-away republic in Georgia. In 2002 and 2006 referendums were held where Abkhazia voted by large margins for de jure independence.