The arc of autonomy in Georgia's Ajara

Abstract

Drawing on the case study of Georgia's Ajara region, this paper makes the argument for foregrounding autonomy as a strategy used by states for managing diverse territories. Particularly salient to the concept of autonomy is its flexibility as a spatial fix, one which can be variously deployed depending on the form of political relations between center and periphery. Empirically, we draw from a set of 22 interviews conducted in Tbilisi and Ajara's capital of Batumi to trace the arc of autonomy in the republic through its Soviet and post-Soviet history. Established on cultural grounds, the form of Ajara's autonomy has subsequently been institutional, instrumental, and nominal. The republic today maintains its autonomous status, though its competences are delimited from Tbilisi; rather, this status serves as a model for the future—albeit unlikely—reincorporation of South Ossetia and Abkhazia into the Georgian state. In conclusion, the paper endorses greater engagement with autonomies that fall short of conflict and separatism but nonetheless provide valuable insights into the suite of strategies that states employ in the management of territory. Autonomies are possibly entering a new, more unstable period of centralizing pressures that will challenge their original purpose and perhaps also regional peace and stability.