Institutionalized and Sustainable Dialogue: Gagauzia 2022-2025

Despite challenging centre-autonomy dynamics, key stakeholders remained committed to the dialogue platform throughout the year supported by multiple public declarations to continue the dialogue in order to identify solutions to emerging issues. This commitment, however, faced a setback in December 2023 when the participation of PAG members in the dialogue process was suspended. Nevertheless, at the technical level, the project made substantial progress in contributing to the sustainability of the dialogue platform and enhancing processes within and between the institutions, establishing a strong foundation for the parliamentary working group to be convened and supported by the secretariats. Additionally, the project successfully revitalized the channel of communication and dialogue between the Ministry of Education and the Gagauzia Department of Education and identified some short-term needs and long-term priorities for joint agenda, in spite of the deteriorating political situation and strained centreautonomy relations during the year. Moreover, the EU Report on Moldovas progress towards the EU accession process featured the results of the dialogue process facilitated by CMI as one of the governments achievements (the importance of the improved consultation mechanism between Chisinau and Comrat adopted by the Parliament in December 2022 and Peoples Assembly of Gagauzia in 2023). OBJECTIVE 1: INCREASING TRUST AND CONFIDENCE BETWEEN THE KEY PARLIAMENTARY ACTORS IN CHISINAU AND COMRAT SO THAT THEY CAN CONSTRUCTIVELY ENGAGE IN DIALOGUE TO RESOLVE SHORT-TERM AND LONG-TERM ISSUES RELATED TO THE GAGAUZ AUTONOMY During the reporting period there was the decrease in trust between Chisinau and Comrat, generated by the governing partys initiative to amend the Fiscal Code regulating the amendment of the mechanism for VAT reimbursements for local businesses that would be paid from the autonomys budget (prior to that VAT reimbursements were paid from the national budget). The initiative triggered multiple debates, invalidating previously made centre-autonomy financial arrangements and further deteriorated trust and relations between Chisinau and Comrat. In spite of the fact that this culminated with the Comrat sub-group stepping out of the parliamentary dialogue process in December 2023, CMI through shuttle diplomacy and regular informal engagements managed to prevent on multiple occasions throughout the year suspension declaration of PAG, and Comrat would adopt a public statement on the commitment to dialogue and the need to continue the cooperation with the central authorities. Moreover, through CMI facilitation the group managed to establish the list of priorities for 2023, mandated the legal Expert Group to work on the prioritized legal initiatives, and approved a number of joint decisions. CMI continued working at the technical level, had regular engagements with key stakeholders, mediating between the sides to prevent escalations and maintain the dialogue process at the informal level. OBJECTIVE 2: ENHANCING AGENCY OF KEY PARLIAMENTARY ACTORS AND INSTITUTIONS TO EFFECTIVELY IMPLEMENT CONSTRUCTIVE AND SUBSTANTIVE ENGAGEMENT ON AUTONOMY ISSUES TO ENSURE THE SUSTAINABILITY OF CENTRE-AUTONOMY DIALOGUE. Through concerted efforts and strategic interventions, tangible outcomes were realized, mirroring the commitment of the CMI to facilitating an inclusive and effective dialogue process. By providing technical assistance and fostering a conducive environment for dialogue, CMI played a pivotal role in identifying pressing priorities for the dialogue process and addressing them through collaborative initiatives. In this regard, the team has consulted and started the implementation of the previously elaborated Sustainability Plan, which is essential to formalise the activity of the Parliamentary Working Group on Gagauzia and develop the institutional framework to support the PWG. Recognizing the importance of and value of CMIs expertise and capacity-building activities, stakeholders expressed a need for additional support, which CMI delivered through its Expert Group and events. Capacity-building workshops organized in partnership with Eurac Research and Aaland Islands Peace Institute further enriched the knowledge base of key actors, enabling them to navigate autonomy issues more effectively. From facilitating dialogue sessions to conducting capacity-building workshops and forging partnerships for knowledge dissemination, the efforts undertaken reflect a commitment to fostering a more informed and effective discourse on autonomy issues. The presentation and discussion of analytical reports on institutional and procedural arrangements, contextualized within the local landscape and informed by international practices, served as invaluable resources for informed decision-making and policy formulation. Also, should be mentioned the role of the Expert Group (EG) that developed several important documents approved by the PWG as well as developed several documents aimed to develop the capacities of the Secretariat of the PAG. OBJECTIVE 3: STRENGTHENING BROADER POLITICAL SUPPORT FOR THE DIALOGUE BETWEEN CHISINAU AND COMRAT ON LEGISLATIVE AND POLICY ISSUES TO ENSURE EFFECTIVENESS AND SUSTAINABILITY OF CENTREAUTONOMY DIALOGUE During the reporting period, CMI continued regular engagement with key local stakeholders (Speaker of the Parliament, Chairperson and members of the Peoples Assembly of Gagauzia, Gagauzia Executive Committee members, ministries, political parties representatives etc) and international stakeholders and representatives of diplomatic missions (Sweden, Finland, Turkey, Romania, US, Germany, the EU Delegation, OSCE, HCNM, UN etc.) for briefings and validation of the dialogue process, mediation between the parts considering the deterioration of relations between Chisinau and Comrat, and approaches to the institutionalization of the parliamentary dialogue platform. CMI also continued regular informal and formal engagement with broader group of key actors both in Chisinau and Comrat (civil society, academia, expert community, journalists) on dialogue platform and in order to ensure sustainable raise of awareness on autonomy related issues. During the reporting period, CMI continued its ongoing and strategic communication on the process to increase and maintain visibility and transparency of the dialogue process as well as the project related activities through press releases, news items and social media posts. Activities with the involvement of the Parliament and PAG representatives and academia partners were distributed by their websites www.parlament.md, www.halktoplushu.md, www.frispa.md, www.kdu.md and social media platforms. Moldova's unstable political context presented a constant challenge for uninterrupted political dialogue around autonomy issues. This continually affected CMIs work with the parliamentary dialogue and political stakeholders during the reporting period, as well as, creating obstacles in the work with the executive branch. While the considerable investment of resources in confidence building and dialogue facilitation at the parliamentary level have resulted in a sustainable process which remains relevant despite various political crisis and challenges, elections and deteriorations in centre-autonomy relations require intensive engagement with the members of the PWG and capacity building efforts in order to deliver permanent constructive dialogue. Insufficient capacities and expertise can significantly hinder the successful execution of the project. In particular, when it comes to autonomy at the regional or local level, various demographic challenges can exacerbate these issues. Factors like internal migration and immigration can strain the available resources and lead to a constant turnover of personnel. Additionally, socio-economic problems, such as low salaries for public servants, can make it difficult to attract and retain qualified professionals. This high turnover and increased workload on existing employees can further impede project implementation. Furthermore, a lack of understanding regarding the dynamics between central and autonomy can create confusion and obstacles, making it crucial to address these issues comprehensively to ensure the success of any project in such contexts. Transfer of ownership to local stakeholders of the CMI-led processes at early stages, proved to be efficient. The involvement of key stakeholders in the consultation process during the development of the sustainability plan for the dialogue platform has proven to be highly effective. This approach ensures that stakeholders take ownership of the process and are actively engaged in its implementation, resulting in a more sustainable and inclusive outcome. Furthermore, participants in the dialogue process have successfully established direct channels of communication, even reaching out to their counterparts without the need for CMI's facilitation. This development is particularly promising as it signifies the establishment of trust-worthy relations, particularly at the technical level, when politics are not involved, fostering a conducive environment for constructive dialogue and collaboration. There is need for stronger cooperation at technical level between the ministries and Gagauzia Executive Committee to avoid cooperation gaps after governmental reshuffles or deterioration of the political situation. The appointment of the new minister of education, for instance, and nomination of the new members of executive committee of Gagauzia as the aftermath of the Gagauz Governors elections, practically interrupted communication between the two institutions, established previously through CMI process. CMI strongly advocated for appointment of a person focal point on Gagauzia to re-establish channels of communication and continue thematic work in the field. Update 2023 results: Introduction: Political Context and Project Environment The project was implemented against a backdrop of significant political shifts in Moldova, particularly in Gagauzia. The outcome of the Governor's elections in spring 2023, which saw a candidate linked to the outlawed Shor party emerge victorious, led to contentious measures by the central authorities. These included changes to fiscal policies and administrative practices that directly affected the autonomys financial arrangements and participation in decision-making. In this challenging political climate, marked by deteriorating centre-autonomy relations and heightened public scrutiny, the project not only continued its planned interventions but also had to adapt its strategies to navigate unforeseen setbacks. Expected Results - The project successfully increased trust among key parliamentary actors between Chisinau and Comrat. For example, survey results showed a reduction in distrust from 25% to 6%, and trust improved by about 20%. - Over 80 individual meetings, 10 informal dialogue sessions, and three formal meetings were conducted to maintain dialogue and set shared priorities. - Capacity-building initiatives were effectively delivered through 18 Expert Group meetings and several thematic workshops focusing on negotiation skills and legal analyses, resulting in the development of nine technical proposals. - The implementation of a Sustainability Plan provided a clear framework for the ongoing operation of the Parliamentary Working Group, ensuring a more robust institutional dialogue process. - Expected outcomes included the adoption of joint decisions such as establishing a translation bureau for normative acts and recommendations for specialized courses in law-making in both Romanian and Gagauz. - These measures were designed to formalize the dialogue process and strengthen institutional cooperation between central and autonomous authorities. Unexpected Outcomes - Despite initial progress, an unexpected setback occurred when the Peoples Assembly of Gagauzia suspended its participation in December 2023 due to fiscal and administrative controversies. - However, proactive shuttle diplomacy and informal engagements enabled the project to sustain dialogue and mitigate the impact of this disruption. - The political turbulence led to broader public engagement than initially anticipated. Public lectures, round tables, and discussion clubs attracted over 260 participants, and public events reached audiences of more than 150 people. - Extensive media outreach through press releases, newsletters, and social media significantly raised the projects profile both nationally and internationally, with recognition in key reports like the EU progress review on Moldovas accession process. - The need to operate under a more volatile political environment spurred innovative approaches. Despite setbacks, the project generated concrete outputs, including new procedural documents and legal recommendations, which strengthened the dialogue process. - The adaptive measures taken during the crisis underscored the projects resilience and capacity to turn challenges into opportunities for institutional learning and improved inter-institutional cooperation. These examples demonstrate that while many of the anticipated outcomes, such as increased trust, enhanced capacity, and institutional strengthening, were achieved, the project also encountered unforeseen challenges that required strategic adaptations in a rapidly evolving political context. Update 2024 results: Throughout the reporting period, the project demonstrated resilience and adaptability in achieving significant results across all three objectives, despite the suspension of formal dialogue and broader political challenges. A key expected outcome was the continued facilitation of dialogue between Chisinau and Comrat, which, although disrupted at the formal level, was maintained through over 100 individual consultations and three informal meetings, including the high-level "Ankara process." These efforts helped preserve institutional relationships and laid the groundwork for potential restoration of the Parliamentary Working Group (PWG) in 2025. At the technical level, the project successfully advanced institutional development. The Expert Group, mandated by the PWG, developed seven key procedural and legal documents, several of which were adopted by the Peoples Assembly of Gagauzia. These outputs addressed regulatory gaps and enhanced the procedural clarity and functionality of both the PWG and the Peoples Assembly, in line with the projects goals of institutionalizing the dialogue mechanism. In the field of education, tangible progress was achieved through sustained engagement between the Ministry of Education and Gagauzias Department of Education. The approval of the Multilingual Education (MLE) concept by ministerial order and the subsequent development of an implementation framework marked a major milestone. The project facilitated 50 meetings on education-related matters, supported technical documentation and policy analyses, and organized a study visit to South Tyrol that inspired further government commitment to multilingual education. Capacity-building efforts also met and exceeded expectations. A new professional development course on multi-level governance was developed in partnership with the Institute for Public Administration (IPA), digitized, and integrated into the IPA e-learning platform. By year-end, 286 civil servants had enrolled, with 65 completing the coursean indication of strong demand and relevance. A Training of Trainers session and several academic workshops helped embed the content into national education institutions, promoting long-term sustainability and broader impact. On the communication front, the Gagauzia 30 Years of Autonomy campaign represented both an expected outreach activity and an unexpectedly high-impact achievement. With over one million estimated TV and media impressions and distribution of multilingual publications, videos, and podcasts, the campaign raised national awareness about the history, culture, and significance of Gagauz autonomy. It also fostered social cohesion by promoting inclusive narratives and countering divisive rhetoric. Unexpectedly, the project also emerged as a stabilizing actor during a politically sensitive period. As the influence of the Shor-affiliated party grew in Gagauzia fueling mistrust and undermining central-autonomy relations the project played a quiet but essential role in maintaining communication channels and providing a neutral space for dialogue. It was notably recognized for this role at the Unity in Diversity Gala, where the project team was awarded for its contribution to promoting interethnic dialogue and social cohesion.

The overall objective of the project is to contribute to a sustainable, solution-oriented, and constructive institutionalized political and substantiated dialogue between Chisinau and Comrat that will support an effectively functioning Gagauz autonomy. The interventions is based on the following specific objectives: 1. Increasing trust and confidence between the key parliamentary actors in Chisinau and Comrat so that they could constructively engage in dialogue to resolve short-term and long-term issues related to the Gagauz Autonomy. 2. Enhancing agency of key parliamentary and executive institutions to effectively implement constructive, and substantive engagement on autonomy issues to ensure the sustainability of centre-autonomy dialogue mechanism. 3. Strengthening broader political support for the dialogue between Chisinau and Comrat on legislative and policy issues to ensure effectiveness and sustainability of centre-autonomy dialogue. Specific Objective 1 focuses on mediation efforts aiming to build confidence and restart the work of the PWG supported by an informal dialogue process, good offices, and targeted capacity building. Workstreams under Specific Objective 2 concentrate on efforts to develop and propose institutional adjustments and capacity building to PWG institutions (secretariats of the Parliament and Peoples Assembly) for supporting the implementation of substantive agenda of the PWG. Specific Objective 3 targets comprehensive political engagement and communication support to achieve broader support and a conducive environment. All workstreams are designed and will be implemented in an integrated manner.