Insight: Who runs Russia?

Vladimir Putin (L) and Dmitri Medvedev must agree policy decisions

Getting to the bottom of the shadowy depths of Kremlin decision-making is tricky. Machiavellian power struggles, dark paranoia of security chiefs and long fingers of corruption can turn seemingly rational and transparent explanations inside out.

But even public signals are instructive, and in the wake of the Georgia crisis, Russia’s leadership is taking stock and has several messages for the West.

The first key question about Russia is – who is really in charge?

The standard answer is President Medvedev as Commander in Chief. He, and only he, ordered Russian troops across the border to hit back when Georgia attacked on South Ossetia.

But presidential power is now the tip of an iceberg. What murky currents swirl beneath the surface is less clear.

Dmitry Medvedev says he was caught unawares and admits his relative inexperience.

“I was on holiday on the Volga when the defence minister called,” he said at a conference of the so-called ‘Valdai Club’ of foreign academics and journalists who specialize in Russia.

“I’ll never forget that night, knowing the consequences there would be when I gave the order to return fire… especially when I’d only been president for 95 days,” he said.

But what about Russia’s ex-president, now his prime minister, who was also at the conference?

“However much authority I have, whoever I may be talking to, none of the troops or tanks would have moved an inch until President Medvedev’s order,” was Vladimir Putin’s attempt to deny his own importance when we asked about his role, thereby indicating that his clout and involvement were considerable.

1998 to present: BBC diplomatic correspondent 1994-98: Washington correspondent 1989-94: Moscow correspondent

What is more, at the outset of the crisis, when Mr Putin was in Beijing for the opening of the Olympic Games, he was already thinking about Russia moving swiftly to recognize the two enclaves at the heart of the crisis.

He had taken the time, he told us, to inform the Chinese leadership that Russia would understand if Beijing chose not to react.

Double act

It begs the question – who is really driving policy, the president or the prime minister?

The choreography and timing of our audiences with both were instructive.

A pair of three-hour meetings, two elegant luncheon settings, two declarative statements for Russian TV cameras at the start, and even two carefully informal blue suits with matching ties.

All to signal, perhaps, that their status is equal – a dual leadership exercising power in tandem.

I never thought I’d need to use harsh rhetoric when I began this job. But there are some moments as president when you are left with no choice Russian President, Dmitri Medvedev

Indeed one senior government official made a point of emphasizing the duality, constantly referring to them in the same breath.

Policy decisions had to be cleared with both, he said. And what was wrong with that? A double act surely strengthened, not muddled governance, requiring a green light from two instead of one.

We met Mr Putin first. Almost the entire discussion was devoted to foreign policy.

He was burning to give his point of view. He seemed supremely confident, engaged and in charge. His anger at the way he felt Russia had been treated in recent years blazed through, as though it was his own personal animosity which is now firing and fuelling current policy.

It was hard to remember he was no longer president.

Economic policy, supposedly at the heart of his new job as prime minister, came up sporadically and he admitted he is still mastering his new brief.

When he did comment directly on Dmitry Medvedev, the impression he left was curious.

Mr Putin seemed to want to play up the differences between them, as though suggesting a “good cop, bad cop” routine.

He described himself as “conservative” and with an uncharacteristic flash of self-deprecation admitted his penchant for blunt speaking was sometimes a liability.

Whereas he described Dmitry Medvedev as bright, young and highly educated, with modern and – he stressed this twice – liberal views.

“He’s a good lad,” said Mr Putin a touch condescendingly, as though recommending his young protege to a would-be employer for a new job.

The aim, it seemed, was to send a signal to the West that Dmitry Medvedev is indeed more flexible and reformist than Putin himself – and was forced to act tough because the crisis left him no option.

Moral high ground

So the US and its allies should understand they had made a big mistake by allowing this conflict to happen – and they would make an even bigger mistake unless they made the compromises Russia now wants.

When we met Dmitry Medvedev he underscored the point.

“I never thought I’d need to use harsh rhetoric when I began this job. But there are some moments as president when you are left with no choice,” he said.

“I very much don’t want the Caucasus crisis to destroy Russian co-operation with Europe and the United States,” he elaborated, and suggested he felt frustrated at his new role of “President of War”.

He’s a good politician, I think I have a better opinion of George than most Americans Vladimir Putin on George W Bush

“A whole month has been lost on this war… I’d rather have been doing other things,” he said. “Yesterday when I met the defence and finance ministers, instead of talking about car and tractor production, we had to discuss where to deploy the Russian army. Priorities have had to change.”

So what, then, at this juncture does Russia want from the West?

The first message is that the Russian government is in no mood to compromise.

It insists it occupies the moral high ground in this crisis and sees no reason to give way.

This was tantamount to Russia’s 9/11, President Dmitry Medvedev declared to us, a defining moment in national policy and in relations with the outside world.

That conviction was echoed from top to bottom in our discussions with government officials, mainstream academics and journalists, all of them insisting Russia had no choice but to respond militarily and take South Ossetia and Abkhazia under its wing.

Any suspicion that Russia cunningly laid a trap that Georgia rashly walked into was dismissed as an outrageous lie.

The idea that by deploying troops deep inside Georgia and unilaterally recognising the two disputed enclaves’ independence Russia had gone too far was rejected out of hand.

The suggestion that by invading Georgian territory, and asserting its right to redraw the map, Russia made itself look like a bully, was also thrown out.

Instead President Saakashvili was blamed for triggering the conflict.

The United States had nudged him into it and rashly armed and trained his men while Europeans had looked the other way.

Any Western criticism to the contrary was hypocritical, given interventions in Kosovo and Iraq, and yet another example of anti-Russian hysteria and unfair stereotyping, based on prejudices left over from the Cold War.

Red line

Curiously both Mr Putin and President Medvedev were carefully respectful when it came to President Bush.

“He’s a good politician, I think I have a better opinion of George than most Americans,” said Mr Putin, at the same time complaining that he had twice tried to get the US president to intervene.

Instead it was Vice-President Cheney and the US Secretary of State Condoleezza Rice, with their Soviet expertise, who were targeted as villains, suspected of fueling anti-Russian sentiment in the US administration and egging Georgia on.

“We need to get rid of stereotypes. The US president has too many Sovietologists in his entourage,” observed Dmitry Medvedev caustically.

Russia is keen to avoid accusations of annexing Georgian territory

The second message that came through clearly was that Russia’s “red line” – any move to extend Nato to Russia’s borders by seeking to incorporate Georgia or Ukraine – still stands.

What Russia really wants is a new discussion on European security arrangements to replace Nato with something else entirely.

But short of that, attempts by the United States or Nato to rearm Georgia or to extend formal invitations to either Georgia or Ukraine to join the alliance seem likely to prompt a furious Russian response.

“Russia has zones that are part of its interests. For the West to deny it is pointless and even dangerous,” said President Medvedev.

“It’s unjust, it’s humiliating, and we’ve had enough. It’s something we are no longer prepared to endure,” he said. “You have a very clear choice here. Let there be no doubt about it.”

What exactly Russia would do to try to prevent this further Nato enlargement was left unclear.

“We’ll do all we can to make sure it doesn’t happen,” said Mr Putin carefully, talking about Ukraine.

Although on Georgia he noted Russian tanks had been within 15 kilometres of Tbilisi and could have taken the capital in four hours.

Economic concerns

So the hints of a threat, but not exactly – and that is interesting. Because the third message that came through was that Russia would like to think a major East-West confrontation can still be avoided.

There may well be powerful forces in Russia’s military and security elite, ultra nationalists who would like to see their country retreat from global integration and rely once more on internal resources – economic and military – as in Soviet days, to reclaim influence geographically and show the outside world Russia’s might can no longer be ignored.

Russia’s stock market value has fallen by 50% since May this year

But diplomatic and economic isolation does not seem to be what the Kremlin leadership currently wants to embrace.

The haste with which both Mr Putin and Mr Medvedev shrugged off the notion that Russia might have to pay a price for this crisis was telling.

They denied that the loss of nearly 50% of Russia’s stock market value from its all time high in May had much to do with the Georgia crisis.

A far more likely cause, they argued – with some justification, given what is happening on Wall Street – was the impact of global financial instability.

In comparison to many other countries, they insisted, Russia’s economy was in good shape – signs of capital flight were temporary. Foreign investors would be back. Russia’s energy resources were needed by everyone and it had weathered economic storms before.

The fact only Nicaragua had joined Russia in recognising Abkhazia and South Ossetia was also dismissed as unimportant, even if the glaring lack of overt diplomatic support for Russia’s actions appears to be a sensitive point.

When the leader of South Ossetia told us he intended to follow up independence by amalgamating his tiny republic with North Ossetia and becoming part of the Russian Federation, he was hurriedly slapped down. Within hours he had issued a retraction.

Outright annexation by Russia of what is, after all, legally speaking Georgian territory is an accusation Moscow seems anxious to avoid.

Yes, Russia wants to claim that the ball is now firmly in the court of the US and its allies – that it is up to them, not Russia, to decide how this geopolitical crisis plays out.

But behind all the moral outrage, I felt there was also a nervousness, a worry that if Russia’s bluff is called and further tensions with the West ensue, it might force a stand-off from which neither side could back down.

“There is a chill in the air and a loss of trust,” said Dmitry Medvedev, “but I don’t think this is a corner turn that will lead to a long confrontation. This is not what we want. And it’s not what you want either.”

Venezuela plans Russia navy visit

The exercises will be the first of their in the region

Venezuela says it plans to hold joint naval exercises in its territorial waters with Russian forces in November.

A senior Venezuelan naval officer said four Russian ships would take part in the exercises, which would also involve Venezuelan aircraft and submarines.

Correspondents say the move is likely to raise concern in the US, whose relations with Russia have been soured by Moscow’s recent conflict in Georgia.

Washington already has rocky relations with Venezuela’s President Hugo Chavez.

In July, he called for a strategic alliance with Russia to protect Venezuela from the US.

Caracas and Moscow agreed to extend bilateral co-operation on energy, with three Russian energy companies to be allowed to operate in Venezuela.

Regional first

On Saturday, Venezuela’s Rear Admiral Salbatore Cammarata Bastidas said four Russian ships and 1,000 Russian troops would take part in exercises in Venezuelan territorial waters from 10 to 14 November.

“This is of great importance because it is the first time it is being done (in the Americas),” he said in a statement quoted by the AFP news agency and local media.

President Chavez supported Russia’s intervention in Georgia last month and has accused Washington of being scared of Moscow’s “new world potential”.

Earlier, US Vice-President Dick Cheney launched a furious attack on Russia over the recent conflict in the Caucasus.

Mr Cheney described Moscow’s actions against Georgia as an affront to civilized standards and said it was reverting back to old Soviet tactics of intimidation and the use of brute force.

He added that Russia was also seeking to use its energy resources as a weapon.

Russia recognises Georgian rebels

Many South Ossetians feel closer to Russia than Georgia

President Dmitry Medvedev has declared that Russia formally recognizes the independence of the breakaway Georgian regions of South Ossetia and Abkhazia.

The move follows a vote in both houses of parliament on Monday, which called on Moscow to recognize the regions.

Mr Medvedev defied a specific plea from US President George W Bush not to go ahead with the move.

Russia and Georgia fought a brief war this month over the provinces, which already had de facto independence.

Analysts say the move is likely to further escalate tensions between Russia and the West.

Rift with Nato

“I have signed decrees on the recognition by the Russian Federation of the independence of South Ossetia and the independence of Abkhazia,” Mr Medvedev said in the announcement.

“That was no easy choice to make, but it is the sole chance of saving people’s lives,” Mr Medvedev added.

He blamed Georgia for failing to negotiate a peaceful settlement to the problem and called on other states to follow Russia’s example.

US Secretary of State Condoleezza Rice, speaking from the West Bank city of Ramallah, said Russia’s decision was “regrettable”.

The US state department had warned that recognition of the two provinces’ independence would be “a violation of Georgian territorial integrity” and “inconsistent with international law”.

In a statement, Mr Bush called on Russia’s leadership to “meet its commitments and not recognize these separatist regions”.

In the two breakaway regions, however, Moscow’s move was warmly welcomed.

Residents in Abkhazia took to the streets to celebrate the news, firing into the air, Reuters reports, and in the South Ossetian capital of Tskhinvali there were scenes of jubilation.

‘New understanding’

Earlier on Tuesday, Russia cancelled a visit by Nato’s secretary general, one of a series of measures to suspend co-operation with the military alliance.

Russia’s ambassador to Nato said the trip would be delayed until relations between the two were clarified.

Dmitry Rogozin said a “new understanding” needed to be reached between Russia and Nato.

The recognition is bound to dramatically heighten tensions in Russia’s already fragile relationship with the West.

He says this and a series of other announcements indicate that Russia is preparing itself for a showdown.

Although most of Russia’s forces pulled out of the rest of Georgia last Friday, it is maintaining a presence both within the two rebel regions and in buffer zones imposed round their boundaries.

Port control

Some Russian troops also continue to operate near the Black Sea port of Poti, south of Abkhazia, where Russia says it will carry out regular inspections of cargo.

The US said on Tuesday that its warships would deliver aid to Georgia’s port of Poti, which is under Russian control. The move could mean US and Russian forces coming face-to-face.

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Russia is right to recognise South Ossetia and guarantee its security

Branco, Bulgaria

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Earlier, the head of European security organisation, the OSCE, Alexander Stubb, accused Russia of trying to empty South Ossetia of Georgians.

Speaking to the BBC’s Europe Today program, he said: “They are clearly trying to empty southern Ossetia from Georgians, which I don’t think goes by any of the books that we deal with in international relations”.

A South Ossetian commander said many Georgian civilians had already left of their own accord, because they were scared of the guns.

Russian MPs back Georgia’s rebels

Abkhazia used the Ossetia conflict to drive out remaining Georgian troops

Both houses of Russia’s parliament have urged the president to recognise the independence of Georgia’s breakaway regions of Abkhazia and South Ossetia.

The unanimous votes in the Federation Council and State Duma are not binding on President Dmitry Medvedev.

But they could provide Mr Medvedev with bargaining chips in talks with the West, analysts say.

Russia fought a brief war with Georgia this month after Tbilisi tried to retake South Ossetia by military force.

Most of Russian ground forces pulled out of Georgia last Friday, following a French-brokered ceasefire agreement between Moscow and Tbilisi.

It’s a historic day for Abkhazia… and South Ossetia Sergei Bagapsh, Abkhazian leader

But some Russian troops continue to operate near the Black Sea port of Poti, south of Abkhazia, and have established checkpoints around South Ossetia.

On Monday, a senior Russian commander said Russian troops would be carrying out regular inspections of cargo in Poti.

Moscow has defended plans to keep its forces near the port, saying it does not break the terms of the truce.

Russia has also said it will not allow aerial reconnaissance in the buffer zones it had set up.

The US, France and UK say Russia has already failed to comply with the ceasefire terms by creating buffer zones around South Ossetia and Abkhazia.

Both regions have had de facto independence since breaking away in the early 1990s.

While they have enjoyed Russian economic and diplomatic support, and military protection, no foreign state has recognised them as independent states.

Since the fighting over South Ossetia ended nearly two weeks ago with the ejection of Georgian forces from both provinces, the Russian military has established controversial buffer zones along their administrative borders with Georgia proper.

‘Hitler’ comparison

The upper house, Federation Council, voted 130-0 to call on President Medvedev to support the independence of Abkhazia and South Ossetia.

The lower house, the State Duma, approved the same resolution in a 447-0 vote shortly afterwards.

South Ossetians rallied for independence last week

The Federation Council speaker, Sergei Mironov, said both Abkhazia and South Ossetia had all the necessary attributes of independent states.

During the debate in the two chambers, several speakers compared Georgia’s military action in South Ossetia with Hitler’s Second World War invasion of the Soviet Union.

Both Abkhaz leader Sergei Bagapsh and his South Ossetian counterpart, Eduard Kokoity, addressed the Russian lawmakers before the votes, urging them to recognise the independence of the two regions.

“It’s a historic day for Abkhazia… and South Ossetia,” UK said, adding that Abkhazia would never again be part of Georgia.

Mr Kokoity thanked Russia for supporting South Ossetia during the conflict with Georgia, describing President Medvedev’s move to deploy troops as “a courageous, timely and correct” decision.

He said that South Ossetia and Abkhazia had more rights to become recognised nations than Kosovo, which declared independence from Serbia earlier this year with support from the US and much of the European Union.

Both houses of the Russian parliament are dominated by allies of President Medvedev and his Prime Minister, Vladimir Putin.

The lawmakers interrupted their summer holidays for extraordinary sittings, formally called at the request of separatist leaders in the two Georgian provinces.

Thousands of people attended pro-independence rallies in the Abkhaz capital Sukhumi and war-ravaged South Ossetian capital Tskhinvali on Thursday.

Kosovo or Northern Cyprus?

While both provinces have been pushing for formal independence since the break-up of the Soviet Union in the 1990s, Russia’s official line at least until now has been similar to that of the West, the BBC’s Humphrey Hawksley reports from Moscow.

But in March the State Duma passed a resolution supporting independence should Georgia invade or rush to join Nato.

After Monday’s votes, the bill will be sent to the Kremlin for approval.

Analysts say the Kremlin might delay its decision while it carries out wider negotiations with the West on the crisis, says our correspondent.

If it backs the move, the two regions could apply to the United Nations for recognition, which would almost certainly be vetoed in the Security Council.

They could also ask for support from Russia’s allies from as far afield as Venezuela and Cuba, our correspondent notes.

Analysts say the two new aspirant nations could end up like Kosovo and be accepted by a substantial number of governments.

Alternatively, they could become largely isolated and recognised only by Russia, in the same way that Northern Cyprus is recognised only by Turkey.

Much of it would depend on the measure of Russia’s international influence, our correspondent adds.

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Georgia facing reality of defeat

Institute for War and Peace Reporting
When Russian troops eventually pull out of Georgian towns such as Gori and Zugdidi, ordinary Georgians will heave a sigh of relief.

Russia’s military has emerged a clear victor in the latest conflict

But that will also be the moment that they take on board the fact that the two territories at the heart of the conflict with Moscow, South Ossetia and Abkhazia, although formally still regarded internationally as Georgian territory, are now essentially lost to them.

The people who will suffer most in the long term from this conflict are more than 20,000 ethnic Georgians from a mosaic of villages in South Ossetia who have now mostly fled.

Relatively few Georgians left during or after the small-scale 1990-92 conflict over South Ossetia and despite intermittent skirmishes and incidents, neighborly contacts continued.

Reporters who have passed through many of the villages in the last few days say they are now in ruins.

The Russian authorities and their South Ossetian allies are now saying that they will not allow the Georgians back any time soon.

A Russian foreign ministry statement on August 18 said, “It is clear that some time – and not a short period of time – must pass in order to heal the wounds and to restore confidence. Only after this, the conditions will be created for discussing practical aspects related to the problems of refugees.”

Hundreds of South Ossetians also lost their homes in the Georgian military assault of 7-8 August and, it appears, in the ensuing Russian counter-attack – but they have the small consolation of knowing they can start rebuilding them.

Russian leverage

The prospect is also now much bleaker for the 240,000 or so ethnic Georgians who were registered as displaced from the 1992-3 conflict in Abkhazia.

Refugees have flooded into Georgia’s capital from areas near South Ossetia

Their hopes of return were predicated on a successful peace agreement which now looks more elusive than ever.

Around 50,000 Georgians live in Abkhazia’s southernmost Gali district under an Abkhaz administration.

So far they have managed to stay in their homes, but their future is also more precarious.

It is not just a matter of Georgian control. It will also be harder now to maintain an international presence in the two disputed regions.

The final point in the six-point ceasefire plan reads: “Pending an international mechanism [in South Ossetia], Russian peacekeeping forces will implement additional security measures.”

That effectively puts an end to the former Joint Peacekeeping Forces, which had a Georgian contingent.

It also gives Moscow even more leverage than before over the shape of any security arrangements for the region.

Moscow is already insisting it can have the only real security presence there.

“We are of course not against international peacekeepers… but the problem is that the Abkhaz and the Ossetians do not trust anyone except Russian peacekeepers,” Russian president Dmitry Medvedev told German chancellor Angela Merkel.

Unattainable dream

The Organization for Security and Cooperation in Europe (OSCE), the only international organization with a mandate in South Ossetia, wants to dispatch an additional 100 monitors to South Ossetia.

Abkhaz fighters were backed by Russian forces against the Georgians

But Russia has dragged its feet, saying it wanted to agree the terms of their deployment in more detail and the OSCE has so far agreed to send just 20 more monitors.

The OSCE had just nine military monitors on the ground in South Ossetia when fighting started there on 7-8 August.

The European Union, with French Foreign Minister Bernard Kouchner taking the lead, also says it want to provide peacekeepers, but Mr Kouchner’s Swedish counterpart, Carl Bildt, admitted this might not work.

“There are no signs of the Russians letting in anyone else,” he said.

In Abkhazia, the United Nations has a small contingent of around 130 unarmed monitors, who were bystanders in the recent crisis.

When the Abkhaz, with Russian support, wanted to capture the mountainous Upper Kodori Gorge district from the Georgians, they merely gave the UN monitors there a 24-hour warning to leave.

The EU has approved small aid programmes for both Abkhazia and South Ossetia in the last few years, but they have looked relatively modest when compared to the vast amount of Russian money coming into both regions.

Abkhazia is bigger and more diverse than South Ossetia with a lively media and many non-governmental organizations.

Many Abkhaz intellectuals dreamed of having some kind of independence free of both Georgia and Russia and with links across the Black Sea to the EU but that now looks unattainable.

‘Double standards’

Internationally mediated peace talks over both disputes had stalled and there is little chance of them resuming properly any time soon.

Faced with a tightening Russian grip, Western leaders can only fall back on expressing support for Georgia’s right to these territories.

US President George W Bush made this commitment on 16 August, saying: “Georgia’s borders should command the same respect as every other nation’s. There’s no room for debate on this matter.”

This becomes a moral argument, with the Russians answering that after supporting Kosovo’s unilateral secession from Serbia, the West is guilty of “double standards” in the Caucasus.

Caught in the middle of these international wrangles are the current and former populations of both Abkhazia and South Ossetia – Abkhaz, Ossetians and other nationalities such as Armenians on the one hand, and the displaced Georgians on the other.

They often get along fine when they have a chance to engage in low-level meetings arranged by foreign organisations or across market stalls.

Now, unfortunately, they are being wrenched apart further than ever by conflict.

Thomas de Waal is Caucasus Editor at the Institute for War and Peace Reporting in London.

Nato holds Georgia crisis summit

Moscow insists that its troops have begun pulling back, as promised

Nato foreign ministers are gathering in Brussels for an emergency summit to discuss how the alliance should respond to Russia’s military action in Georgia.

On the eve of the meeting, US Secretary of State Condoleezza Rice said the West must deprive Russia of any strategic victory from its assault on Georgia.

But major differences remain among Nato members as to how far they should go in seeking to punish Russia, analysts say.

Tbilisi says Russia is not pulling out, as pledged, but Moscow denies it.

The conflict broke out on 7 August when Georgia launched an assault to wrest back control of the Moscow-backed breakaway region of South Ossetia, triggering a counter-offensive by Russian troops who advanced beyond South Ossetia into Georgia’s heartland.

A ceasefire was signed at the weekend, with Moscow pledging to begin pulling back its troops on Monday, but correspondents say there has so far been little sign of any large-scale force withdrawal.

We hope the decisions by Nato will be balanced and that responsible forces in the West will give up the total cynicism that has been so evident [which] is pushing us back to the Cold War era Dmitry Rogozin Russia’s ambassador to Nato

Officials in Tbilisi said there was no evidence that Russian troops were leaving Georgian territory, but the Russian defence ministry said the redeployment had begun and would be complete within days.

As Nato’s 26 foreign ministers gather in Brussels, the BBC’s Jonathan Marcus says there is disagreement among the alliance as to how to respond, so the focus will be on where members can agree.

It is thought that in one camp, Britain, Canada, the US and most Eastern European member states will seek a tough stance on Russia, but most of Western Europe, led by France and Germany, is expected to be more cautious of harming ties with Moscow.

Flying to the Nato meeting, Ms Rice told reporters: “We have to deny Russian strategic objectives, which are clearly to undermine Georgia’s democracy, to use its military capability to damage and in some cases destroy Georgian infrastructure and to try and weaken the Georgian state.”

PEACE PLAN No more use of force Stop all military actions for good Free access to humanitarian aid Georgian troops return to their places of permanent deployment Russian troops to return to pre-conflict positions International talks about security in South Ossetia and Abkhazia

Our correspondent says the summit, called at the Americans’ request, looks set to offer strong support to the government in Tbilisi, stressing Nato’s commitment to Georgia’s sovereignty.

A Nato spokeswoman told AFP news agency: “I think you can expect a strong message to Russia.”

The alliance is also expected to reiterate its backing for the agreement it reached in Romania back in April that Georgia will one day be offered membership of Nato, without setting any dates.

Nato is also expected to offer more humanitarian aid and proposals on how to rebuild Georgian infrastructure damaged in the conflict.

Our correspondent says Nato’s immediate diplomatic goals are a full Russian withdrawal, an enhanced observer force and, ultimately, a more neutral peacekeeping arrangement.

He says high-level contacts between Nato and Russia could be suspended if Russians do not pull back to the positions their peacekeepers occupied before the hostilities.

HAVE YOUR SAY

The sight of GWB [US President George Bush] complaining about Russia’s “disproportionate use of force” is hilarious

Max, London

Washington has denied claims from Moscow that it is out to wreck the Nato-Russia Council – a consultative panel set up in 2002 to improve ties between the former Cold War enemies.

Dmitry Rogozin, Russia’s ambassador to Nato, said on Monday he hoped the “decisions by Nato will be balanced and that responsible forces in the West will give up the total cynicism that has been so evident [which] is pushing us back to the Cold War era”, reported the Associated Press news agency.

Georgian President Mikhail Saakashvili struck a conciliatory tone on Monday as he called for talks with Russia, saying: “Let’s resolve problems through civilized methods.”

Russian troops ‘start withdrawal’

Moscow’s troops continue to operate deep inside the Caucasus republic

The Russian commander of front line forces in Georgia has told that a gradual withdrawal of Russian forces from Georgia is under way.

Maj Gen Vyacheslav Borisov said he had given the order for Russian soldiers to be replaced by peacekeepers.

Russian forces in position 35km (22 miles) from the Georgian capital, Tbilisi, on the road to Gori, close to South Ossetia.

Russia said it did not have a timetable for a full withdrawal from Gori.

Russia still controls almost all of the main arterial highway running east-west through Georgia, and the main towns along the route.

Russia’s claimed redeployment comes a day after Moscow signed a French-brokered peace plan to end the crisis.

Conflict between Georgia and Russia erupted on 7 August when Georgia launched an assault to retake its Russian-backed separatist province of South Ossetia.

It led to a massive counter-offensive by Russia, with Russia moving deeper into Georgian territory.

The US has demanded Russian troops pull out, but Moscow says it will only withdraw from Georgian territory once extra security measures are in place.

International attention

French President Nicolas Sarkozy, who mediated the peace deal on behalf of the European Union, has warned Moscow that the ceasefire bars its forces from any “major urban area” in Georgia.

However, in a letter addressed to his Georgian counterpart, Mikhail Saakashvili, Mr Sarkozy said Russian troops did have the right to patrol “a few kilometres” beyond the conflict zone in South Ossetia.

But he underlined that clauses in the agreement permitting Russia to implement additional security measures “in no way limit or put in danger the freedom of movement and travel along the road and rail axes of Georgia” and could not be applied in any towns or cities.

PEACE PLAN No more use of force Stop all military actions for good Free access to humanitarian aid Georgian troops return to their places of permanent deployment Russian troops to return to pre-conflict positions International talks about future status of South Ossetia and Abkhazia

“I am particularly thinking of the city of Gori,” he said, which is the largest town close to the South Ossetia border.

There is a much reduced Russian military presence in the town compared with Saturday – though Russian soldiers still control the town’s key entry and exit points.

He says that even if Russian peacekeepers replace soldiers, local residents say it will not make much difference.

Meanwhile, US President George W Bush has reiterated his staunch support for ally Georgia.

The German Chancellor, Angela Merkel, is due to hold talks with Mr Saakashvili in Tbilisi later on Sunday.

Meanwhile, Human Rights Watch has called on the Russian authorities to immediately take steps to end attacks by South Ossetian militias on ethnic Georgians in Gori and to allow vital humanitarian aid to reach vulnerable civilians.

“The Russian military has effective control of the Gori region, making it responsible for the security and well-being of all people living there,” said Rachel Denber, HRW’s Europe deputy director.

Russian control

The BBC’s Richard Galpin, who has spent the past two days traveling from the Black Sea port of Poti to Tbilisi, says Georgian forces seem to be surrendering control of the highway to the Russians.

The UN puts the number of those displaced in the conflict at 118,000

In the western town of Senaki, our correspondent saw large numbers of Russian troops moving around on Saturday.

Further east in Zestafoni, he witnessed the panic of local residents as the word spread that the Russian army was approaching.

Cars sped away from roadblocks set up by the Georgian police, the drivers realizing their hopes of reaching Tbilisi had been dashed.

When the Russians arrived, they stayed only a few minutes after apparently being told there was no military base to take over.

Our correspondent says he then followed the Russian troops as they entered the central town of Khashuri, where they were given an escort by the local police.

He spoke to one Russian soldier who said he believed their final destination would be the Georgian capital, although the Kremlin flatly denied this. Another soldier said he expected to be in Georgia for a year.

Georgia has meanwhile accused pro-Russian Abkhaz separatist fighters of taking over 13 villages and a hydroelectric power plant. There has so far been no independent confirmation.

Security steps

Among the six points in the ceasefire deal, both sides agreed to pull back their forces to their positions before hostilities began on 7 August.

Diplomats have said that the UN Security Council is expected to vote later on Sunday on a draft resolution formalising the ceasefire agreement.

President Bush has said Mr Medvedev’s signing of the truce is “hopeful”, but that there can be no question that South Ossetia and Abkhazia will remain within Georgian borders, which are internationally recognised.

Reports suggest Mr Saakashvili only reluctantly agreed to another of the plan’s clauses – international talks about the future status of South Ossetia and Abkhazia.

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Georgia surrounds rebel capital

Georgia says its troops have surrounded the capital of separatist South Ossetia as Russia warns further aggression would lead to retaliation from Moscow.

Fighting around Tskhinvali resumed overnight, breaking a ceasefire deal, and bombardments are continuing.

Georgian President Mikhail Saakasvili has called on reservists to sign up for duty and accused Russia of sending fighter jets to bomb Georgian towns.

At least 15 civilians are said to have died as well as several Russian troops.

Residents of Tskhinvali are reported to be sheltering in basements as massive explosions rock the city. Both sides blame each other for breaking the ceasefire.

This is very sad and very disturbing and, of course, this will provoke actions in response Vladimir Putin Russian Prime Minister

A spokesman for the Russian peacekeepers in South Ossetia told Interfax news agency that Georgian shells directly hit barracks in Tskhinvali, killing several peacekeepers.

Irina Gagloyeva, a South Ossetian official in Tskhinvali, described the scene in the beseiged city overnight after the Georgian military action started.

“Virtually all the people of the city are in shelters, myself included. It started at midnight, and has barely stopped for a minute,” she told the BBC. “Can you hear? That’s rockets. All my windows have blown out. Thirty-five thousand residents of our capital have become the hostages of Georgian fascism.”

Russian fighters

Georgian Prime Minister Lado Gurgenidze said Georgia had simply run out of patience with attacks by separatist militias in recent days and had had to move in to restore peace in South Ossetia.

SOUTH OSSETIA Population: About 70,000 Capital: Tskhinvali Major languages: Ossetian, Georgian, Russian Major religion: Orthodox Christianity Currency: Russian rouble, Georgian lari Caucasus on alert Clashes reignite war fears

Georgia accuses Russia of arming the separatists who have been trying to break away since the civil war in the 1990s. Moscow denies the claim.

Russia called an emergency meeting of the UN Security Council to respond to the crisis, but members failed to agree on a Russian statement calling on both sides to renounce the use of force.

Russian President Dmitri Medvedev has convened his national security council and Prime Minister Vladimir Putin promised a response to what he called Georgian aggression.

The BBC’s James Rodgers in Moscow says Russia has always said it supports the territorial integrity of Georgia but has also said it would defend its citizens. Many South Ossetians hold Russian passports.

Hundreds of fighters from Russia and Georgia’s other breakaway region of Abkhazia are reportedly heading to aid the separatist troops.

Mr Saakashvili’s claims of Russian jets bombarding Georgian targets have not been independently confirmed.

Georgia says its aim is to finish “a criminal regime” and restore order.

Georgia’s Prime Minister Lado Gurgenidze told reporters on Friday the military operations would continue until there was “a durable peace”.

“As soon as a durable peace takes hold we need to move forward with dialogue and peaceful negotiations,” he told reporters.

Appeal for talks

South Ossetian leader Eduard Kokoity told Interfax news agency his forces were still in control of the city, but Georgia claims to have Tskhinvali surrounded.

The Russian envoy to the UN, Vitaliy Churkin, described Georgia’s actions as “treacherous”.

“The situation in the conflict zone has reached a dramatic line,” he told the emergency session, according to Russian Vesti TV news.

“Civilians, old people and children are under massive artillery shelling from Grad rocket systems, guns and large-calibre mortars.”

Despite failing to agree a text, many council members did call on the parties to pull back.

China, where the Olympic Games opens on Friday, called for worldwide truce during the sporting event.

A White House spokesman said “all sides should bring an immediate end to the violence and engage in direct talks to resolve this matter peacefully”.

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