The author of the analytical article is Tamar Tabatadze,  student of the European and International Governance Master's Programme at the University of Geneva. This essay was written for the competition "The Role of Misinformation in the Formation of Historical Memory".

The competition was organized by IDFI with the financial support of the Swedish International Development Cooperation Agency, SIDA. The views expressed in the analysis may not reflect the position of the Swedish International Development Cooperation Agency (SIDA) and the Institute for Development of Freedom of Information (IDFI).

Tamar Tabatadze is one of the winners of the competition - III place holder.

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Introduction

Disseminating disinformation, an increasingly intricate phenomenon in contemporary society, poses one of the major challenges of our time. One significant downside of disinformation is its infringement on human rights and undermining of fundamental aspects of democracy. While the term "disinformation" may seem relatively novel, its roots trace back to the 1920s in Russia. It was during this period that the Russian state security division (known as the КГБ) established the "Special Disinformation Office", with the explicit aim of disseminating fabricated narratives to sway public opinion.^[1] Presently, disinformation is defined as deliberately propagated false or misleading information, designed to deceive the public, inflict societal harm, or serve economic interests.^[2] Its ramifications are multifaceted, encompassing manipulation of citizenry, polarization of public opinion, promotion of violent extremism, and propagation of hate speech. Ultimately, the proliferation of disinformation erodes trust in democratic processes, norms, and institutions.^[3]Furthermore, contemporary analysis emphasizes that disinformation transcends mere falsehoods, comprising a blend of truth and fabrication strategically intertwined to convey a larger plan.^[4]

The post-Soviet country of Georgia has encountered a notably challenging geopolitical landscape, with disinformation and propaganda posing significant obstacles to its security and democratic advancement. Georgia was granted a candidate status of the European Union on 14 December 2023. In the Council Conclusions on Enlargement, one of the recommendations provided to Georgia for the forthcoming discussions is to make significant progress in combating disinformation and foreign interference through meaningful steps.^[5]

The digital revolution has notably heightened Georgian society's susceptibility to information manipulation, primarily due to the emergence of newer social media platforms which now dominate traditional media networks. Notably, there has been a proliferation of anti-Western and pro-Russian propaganda within contemporary Georgia. Disinformation often centers around the notion that Georgian values are incompatible with those of Europe's lifestyle. Additionally, narratives propagate the idea that integration with the European Union is unattainable, and that Georgia's pro-Western foreign policy adversely affects its interests. Furthermore, there have been observed efforts to destabilize Georgia's relationships with Western partners.^[6]

As online platforms are increasingly utilized for accessing and disseminating information, the negative impact on the formation of public opinion becomes more pronounced. However, the causal effects are more discernible when analyzing disinformation and propaganda within a historical context. Specifically, delving into their roots in the 20th century and tracing the evolution of disinformation and propaganda underscores that the information warfare against Georgia is not an isolated event. Therefore, this essay aims to portray the threat of disinformation to Georgian society through an analysis that encompasses not only the contemporary digital era but also the recent past.

Roots of Disinformation – the Soviet Propaganda

The deliberate dissemination of false, distorted, and influential information constituted an integral component of Soviet Union policy. Within the context of the Soviet Union, the term "propaganda" can be characterized as a mechanism for governing the masses by regulating thought processes and consciousness.^[7] The primary objective of 20th-century Soviet propaganda was to shape public opinion and the political landscape. Despite the absence of the internet, which necessitated greater efforts to disseminate information, these objectives were achieved successfully through various mechanisms.

The propagandistic and disinformation activities mentioned above are most aptly described by the term "active measures," which originated in the Soviet Union during the 1950s. These measures were designed to manipulate the perceptions of the target audience and create a conducive information environment to further the Union's objectives.^[8]Such tactics encompassed disseminating false information, manipulating media outlets, and establishing clandestine radio channels through influence agents.^[9] Among the tactics, it should be noted that falsified official documents and correspondence have been utilized to damage the reputation of the victims. ^[10] Currently, the majority of active measures tactics are recognized as tools of hybrid warfare and threats.^[11]

The Soviet Union employed black propaganda as a means of spreading its message. Black propaganda in Russia has a long history predating the Soviet Union. The Foreign Agency established by Russia in Paris primarily served propagandistic purposes. It financed various European journalists to publish articles dictated by the Agency in well-known newspapers and magazines. These articles aimed to portray a positive image of Russia, counter critics, and disseminate disinformation for various purposes.^[12]

Each state body of the Soviet Union, according to its competencies, participated in coordinated campaigns: the KGB was responsible for "black propaganda," spreading rumors, and generating false information; the International Information Department (Отдел Международной Информации ОМИ) led "white propaganda," disseminating news through official media organizations; while the International Department (Международный Отдел ЦК КПСС) was tasked with "grey propaganda," spreading news through international front organizations.^[13]

One of the main aims of Soviet disinformation was to cultivate anti-Western sentiments on a global scale. Specifically, anti-Western propaganda targeted the USA and NATO, entailing critiques of their internal and foreign policies, provocation of conflicts, deterioration of relations with other countries, tarnishing the USA's image in the developing world, advocating opposition to it, fostering mistrust, and impeding cooperation efforts.^[14]

According to the 2018 report from the Media Development Foundation research, it is evident that narratives stemming from Soviet and continuing with Russian disinformation are deeply entrenched in contemporary Georgia. Specifically, the research identifies Soviet idealization as a concern, and highlights that strategic partnership with Russia is nominated as the only way to resolve the challenges Georgia is facing. In addition, it should be noted that justification of the activities of dictators, including Stalin, and the nostalgia for the Soviet era are prevalent.^[15]

Transformation of the Soviet Propaganda at the Beginning of the 21^st Century

After the dissolution of the Soviet Union, Soviet propaganda transformed into Russian disinformation, with Georgia remaining one of the prime targets of Russian information warfare. Despite significant changes in methods, the primary themes and objectives have remained unchanged. In the era of mobile applications and social networks, this has become a profoundly serious issue. Additionally, technological influence techniques have evolved, including information warfare and cyber-attacks. The digital revolution and the development of social media have facilitated the rapid spread of false information and fake news. Consequently, the potential to influence Georgian public opinion has increased, compounded by the confusion and vulnerability resulting from the difficulty of distinguishing truth from falsehood.

The cyber-attack against Georgia during the 2008 Russo-Georgian war can be regarded as a primary example of Russian disinformation in 21st-century Georgia. The conflict was accompanied by an unprecedented media campaign aimed at garnering diplomatic and military support for Russian authorities.^[16]Among the techniques employed in media campaigns were the imposition of an information blockade on Georgian servers, manipulation of casualty figures attributed to "Georgian aggression," biased selection of eyewitnesses, showcasing individuals critical of the Georgian government in front of TV cameras, downplaying the harm inflicted on the Tskhinvali region by Russians, and portraying them as "peacekeepers and security guarantors.^[17] The primary messages of Russian propaganda asserted that Georgia initiated the war on August 8, 2008, targeting ethnic Ossetians, and that Russia intervened in the conflict to safeguard its citizens.^[18] Hence, the principal narrative conveyed by the Russian media post-war was as follows: Georgia's geographic proximity, shared 200-year history, and common Christian faith necessitate its alignment with Russia; Russia will not permit Georgia to drift away; NATO and EU membership would spell destruction for Georgia; the West is an unreliable partner; and Georgia harbors misguided illusions regarding Western prospects.^[19]

As previously mentioned, quantifying the precise negative impact of disinformation on shaping public opinion proves challenging. However, considering the prevailing historical context and geopolitical circumstances, a causal relationship can be logically inferred. The fact that the Russia-Georgia 2008 war and its underlying causes remain ambiguous to a segment of Georgian society can be attributed to the aforementioned disinformation and coercion. This assertion is supported by numerous public opinion surveys conducted in Georgia. For instance, a poll conducted in post-war Georgia in 2009 revealed that 47% of respondents still believed that Georgia needed to maintain positive relations with Russia at all costs.^[20]

Subsequent polls further illustrated Georgian support for this notion, as evidenced by the gradual yet consistent decline in support for NATO. According to the National Democratic Institute's January 2008 poll, 77% of respondents favored Georgia's integration with NATO. However, this figure decreased to 71% in 2011, 68% in 2015, and 65% in 2018.^[21]

Social media monitoring and analysis conducted by the McCain Institute from 2017 to 2019 revealed the transference of Kremlin strategic narratives into the Georgian context, reflecting developments in Georgian and international politics. Among these narratives was the assertion of Russia's global power, portraying it as safeguarding its legitimate interests and suggesting that Georgia should not have initiated military provocations in 2008.^[22]

Furthermore, the CRRC's public opinion survey in 2023 revealed that 41% of respondents prefer Georgia's military neutrality over joining NATO, as they believe integration would escalate conflict with Russia. It is noteworthy that the perception of Russia as Georgia's partner has declined. However, in 2021, 20% of respondents and in 2023, 14% believed that Russia is a more natural partner for Georgia than NATO, citing shared values and religion.^[23] Given that Georgia experienced the war 12 years ago, this statistic may be indicative of the significant impact of disseminated disinformation.

Disinformation in the Digital Era

The Soviet legacy continues to manifest itself in 21st-century Georgia, with the primary thematic focus of disinformation revolving around narratives targeting the USA, NATO, EU, and the Western world in general. According to the McCain Institute survey conducted between 2017 and 2018, six major topics of disinformation include the EU, NATO, USA, extremist nationalists, LGBT issues, and NGOs.^[24]

Georgian social media was analyzed in the Anti-Western Propaganda research conducted by the Media Development Foundation in 2018. Regarding the USA, the prevailing sentiment is that it encroaches on Georgia's sovereignty and interferes in the decision-making process. Moreover, there is a widespread belief that the 2008 war with Russia was instigated by the USA, despite its failure to protect Georgia. Another issue is skepticism about Georgia's eventual NATO membership, with concerns raised that it would necessitate territorial concessions. This creates a false dilemma - NATO or territorial integrity. Narratives directed against the West, particularly the USA, often highlight Western interference in the sovereign affairs of the country, lack of interest in conflict resolution, and failure to regulate relations with Russia.^[25]

Euroscepticism is apparent in both aforementioned studies, suggesting on one hand that Georgia lacks a European perspective, and on the other hand, that the dissolution of the European Union is inevitable. Additionally, it is emphasized that visa liberalization would result in a demographic crisis due to an uncontrolled influx of migrants. Emphasis on traditional values is also significant, as Georgian values are seen as incompatible with the European way of life, and integration into the European Union is perceived as a threat to national identity.

In the digital era, anti-Western propaganda is notably prevalent in Georgia, with the aim of manipulating public perceptions, polarizing society, fostering acceptance of Russian policies, and bolstering anti-Western sentiments. Social networks, websites, internet television, and television broadcasts are actively utilized to disseminate disinformation. This collectively creates a conducive environment for the Russian Federation to manipulate public sentiment within the country, ultimately hindering the nation's democratic development.

Following the onset of a full-scale war by Russia in Ukraine on February 24, 2022, the threat of disinformation targeting Georgia, particularly its European aspirations, became even more pronounced.^[26]One wave of disinformation has circulated concerning the European Union, suggesting that it intends to open a second front in Georgia. It is falsely claimed that Georgia cannot attain candidate status for the European Union as a punishment for Ukraine's involvement in the war.^[27]

Many of these narratives are cataloged in the database of the EU disinformation mechanism, the East Stratcom Task Force (EuvsDisinfo). For instance, a prevalent misinformation suggests that Ukrainian President Zelenskyy, during the Joint Expeditionary Force Summit in Sweden, urged Georgia to initiate a conflict to reclaim territorial integrity, implying an invasion of Abkhazia and South Ossetia.

Indeed, President Zelenskyy addressed the summit discussing the emerging security dynamics in the South Caucasus region and the potential for restoring territorial integrity in Georgia. However, he refrained from urging Georgia to open a new war front, instead emphasizing that the security of the region is contingent upon Ukraine's success in countering Russian aggression.^[28]Another pro-Russian misinformation circulating is the claim that the West is orchestrating a new "colorful revolution" in Georgia, and Europe intends to exploit Georgia's integration into the European Union as a means to facilitate such an event.^[29]

Conspiracy theories regarding Georgia's involvement in the Russia-Ukraine war are perceived as credible by a substantial portion of the population. According to a public opinion survey conducted by CRRC Georgia in 2023, 25% of respondents agree, and 4% completely agree—comprising a third of the respondents—with the notion that the West is attempting to embroil Georgia in the conflict, either in parallel with or in support of Ukraine, potentially leading to a direct military confrontation.

The aforementioned Russian messages bear resemblance to the disinformation campaigns of the Soviet Union. Accusations directed at the US and NATO during that era regarding interference in the domestic affairs of other countries mirror today's narratives targeting the same entities: the US, NATO, and the EU. It is evident that Russia employs this tactic against countries it still perceives as under its influence, preventing them from diverging from their Soviet historical legacy onto a Western, democratic path.

Conclusion

Georgia has a complex geopolitical and historical background. From its membership in the Soviet Union to the present day, it has been a prime target of Russian propaganda. A key aspect of Soviet propaganda was portraying the West as a chaotic and unstable environment, contrasting it with the perceived ease of life for Soviet citizens. Anti-Western propaganda aimed to stoke sentiments against the USA and NATO, damaging their reputations and fostering distrust. Through "active measures," influence agents, spies, the dissemination of false information, and the falsification of official documents and correspondence, Soviet propaganda significantly influenced public opinion with false and misleading information. This Soviet legacy persists in contemporary Georgia, where society's vulnerability to disinformation has increased due to advanced digital methods. The goal is to instill fear and pave the way for closer ties with Russia rather than Europe. Contemporary anti-Western propaganda relies on misleading narratives about the Euro-Atlantic political course and Georgia's Western partners (USA, NATO, EU). Disinformation predominantly focuses on the perceived loss of Georgian values with EU integration and the negative consequences of NATO integration, including territorial loss and violations of Georgia's territorial integrity. Georgian public opinion and perceptions are influenced to some extent by a powerful Russian propaganda mechanism, making it increasingly difficult to distinguish between viral, unverified information and truth. Ultimately, both state security and democratic development are at risk due to the pervasive spread of disinformation.

გამოყენებული ლიტერატურა:

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^[2] Colomina, C., Sanchez Margalef, H., Youngs, R. (2021). The Impact of Disinformation on Democratic Processes and Human Rights in the World. European Parliament, 3.  https://bit.ly/3vy7q5U

^[3] Council of Europe (n.d.). Dealing with propaganda, misinformation and fake news. Www.coe.int. Retrieved January 7, 2024. https://bit.ly/47wnB10 

^[4] National Endowment for Democracy (2017, October 17). Distinguishing Disinformation from Propaganda, Misinformation, and "Fake News". Ned.org. Retrieved January 7, 2024. https://bit.ly/3Sb0rss

^[5] (2023). COUNCIL CONCLUSIONS ON ENLARGEMENT (p. 30). Council of the European Union. https://bit.ly/3HbmDwv  

^[6]საერთაშორისო გამჭვირვალობა საქართველო. (2019). დეზინფორმაციის წინააღმდეგ ბრძოლა საქართველოში. https://bit.ly/3HazcYV

^[7] DENNY, A. (1951). Soviet Propaganda. The Military Engineer, 43(294), 259–262. https://bit.ly/3Hb7V8M

^[8] შუბითიძე, ე. (2021). საინფორმაციო ომის მეთოდების ტრანსფორმაცია თანამედროვე საკომუნიკაციო შესაძლებლობების განვითარების ფონზე. საქართველოს სტრატეგიისა და განვითარების ცენტრი. გვ. 7 https://bit.ly/3S6Xaur

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^[11]National Library of Medicine. (2023, July 27). Information Manipulation and Historical Revisionism: Russian Disinformation and Foreign Interference through Manipulated History-based Narratives. Retrieved January 7, 2024.

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^[12] Rosin, Randolph, E. (2023). Propaganda on Steroids: A Case Study on How Communication Technology “Pumped-Up” Russian Black Propaganda. American University. p. 102 http://bit.ly/42E1PYA

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^[14]ინფორმაციის თავისუფლების განვითარების ინსტიტუტი. (2022). ანტიდასავლური პროპაგანდის საბჭოთა საწყისები. ნანახია 7 იანვარი, 2024.  http://bit.ly/47r5fhR

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^[27] ცეცხლაძე, ს. (2023). დეზინფორმაციის გავრცელება საქართველოში, სახელმწიფოს მიდგომა და ბრძოლის გზები. საერთაშორისო გამჭვირვალობა საქართველო. გვ.14  https://bit.ly/41MoHEF

^[28] EUvsDisinfo. (2023). Disinfo: Zelenskyy Called on Georgia to Start a War Against Abkhazia and South Ossetia. Retrieved January 7, 2024.  https://bit.ly/48NRxa5

^[29] EUvsDisinfo. (2023). Disinfo: the West is Preparing Georgia for a New Colour Revolution. Retrieved January 7, 2024.  https://bit.ly/48IkTGS