Research Manager: Lika Sajaia

Lead researcher: Tamar Tatanashvili

Also participated in the research: George Topouria, Gigi Chikhladze,
Ana Dabrundashvili, Giorgi Beraia
Transparency International Georgia
Address: Tbilisi, Aghmashenebeli Avenue 61, 0102
Telephone: (+995 32) 292 14 03
Email: info@transparency.ge , parliament@transparency.ge
Website: http://transparency.ge, http://MyParliament.ge
The report was prepared with the financial support of the Swedish International Development
Cooperation Agency (Sida).
TI Georgia is responsible for the content of the report. The views expressed in the report do not
necessarily reflect the views of the Swedish International Development Cooperation Agency (Sida).

CONTENT
INTRODUCTION
CHAPTER 1. GENERAL INFORMATION ABOUT THE PARLIAMENT
CHAPTER 2. GENERAL STATISTICS
CHAPTER 3. IMPORTANT EVENTS
3.1. Election of Public Officials by the Parliament
3.2. Approval of the Open Parliament Georgia Action Plan
3.3. Establishment of an Interim Investigation Commission on Sakdrisi-Kachagiani Gold Mine
3.4. Changes in the Parliamentary Majority and Minority
3.5. The Presidents Address to the Parliament
3.6. Initiation of Constitutional Amendments and
Legislative Amendments Related to Electoral System
3.7. Postponement Enactment of Draft Laws
3.8. Vote of Confidence to the Government
CHAPTER 4. IMPORTANT LEGISLATIVE AMENDMENTS
4.1. Progressive Legislative Amendments
4.1.1. Reform of Capacity Institute of Georgia
4.1.2. Code of Juvenile Justice
4.1.3. Ban on Early Marriages with Parental Consent
4.1.4. Mandate Extension for the Confidence Group
4.1.5. Legal Status of Aliens
4.2. Positive Legislative Amendments Needing Refinement
4.2.1. Public Service Reform
4.2.2. Law on the Business Ombudsman
4.2.3. Law on Labour Migration
4.2.4. Legislative Amendments to Drug-Related Offences
4.3. Negative legislative amendments
4.3.1. Separation of the Supervision Function from the National Bank
4.3.2. Amendments to Eviction Regulations
4.3.3. Amendments the Law on the Notaries
4.3.4. Law on State Secrets
4.3.5. Reducing the Scope of Jury Trial
4.3.6. Criminalizing Incitement of Hatred
4.3.7. Amendments to Rules on Witness Interrogation
4.4. Reform of law enforcement system
4.4.1. Reform of the Ministry of Internal Affairs
4.4.2. Prosecution Reform
CHAPTER 5. PARLIAMENTARY CONTROL
5.1. Hearing of Reports of the Bodies Accountable to the Parliament
5.1.1. Hearing of Reports by the State Audit Office and the National Bank of Georgia
5.1.2. Hearing of Reports by Committees and Inviting the Bodies
Accountable to the Parliament to the Committee
5.2. MP Questions: Verbal and Written
5.3. Government Hour in Parliament
5.4. Temporary Investigation Commissions

4
4
6
8
8
8
9
9
10
10
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12
14
14
14
14
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23
26
26
27
27
30
33
33

5.5. Execution of Control by the Parliament over Implementation of Governmental Acts and the Budget
CHAPTER 6. INFORMATION ABOUT MPS (EDUCATION, AGE, PROFESSION)
6.1. Age of the Members of Parliament
6.2. Education and Specialisation of the Members of Parliament
CHAPTER 7. PARTICIPATION OF WOMEN IN THE ACTIVITIES OF THE PARLIAMENTARY
CHAPTER 8. ACTIVITIES OF PARLIAMENTARY COMMISSIONS AND COUNCILS
8.1. Commission on Restoration of Territorial Integrity
8.2. Council of Gender Equality
8.3. Treasury Council
8.4. Supervisory Council of Budget Office of the Parliament
8.5. State Constitutional Commission and Organizational Committee
for Nationwide Discussions on Constitutional Amendments
CHAPTER 9. ACTIVITIES OF MEMBERS OF PARLIAMENT
9.1. Number of Draft Laws Initiated and Adopted by Members of Parliament and the Initiators
9.2. Number of Speeches Given by Members of Parliament at the Plenary Sessions
9.3. Comments of Members of Parliament on Draft Laws
9.4. Business Trips of the Members of Parliament
CHAPTER 10. PARTICIPATION OF THE MEMBERS OF PARLIAMENT IN THE PLENARY SESSIONS
AND WORK OF THE COMMITTEES; THE ISSUE OF DISCIPLINARY LIABILITY
10.1. Reasonable Cause for Absence from Plenary Sessions and Committee Meetings
10.2. Absence from Plenary Sessions and Committee Meetings without a Reasonable Cause
CHAPTER 11. EVALUATION OF THE WORK OF THE COMMITTEES OF THE PARLIAMENT
11.1. Participation of the Committees in the Legislative Process
11.2. Discussion of Legislative Proposals by the Committees
11.3. Response to the Applications Submitted by the Citizens
11.4. Establishment of Working Groups by Committees and Outcomes of their Performance
11.5. Relationship of Committees with Experts
11.6. Legal Issues Committee Representation in the Constitutional Court
11.7. Activities of the Committee on European Integration
CHAPTER 12. ACTIVITIES OF THE BUREAUS OF MAJORITARIAN
MEMBERS OF PARLIAMENT
12.1. Applications and Problems of the Citizens
12.2. Problems of Voters and Survey Results
12.3. Public Meetings
12.4. Bureaus and Local Self-Government Bodies
12. 5. Cost Estimation of the Majoritarian Bureaus
12.6. Informing the Population
CHAPTER 13. CONNECTION OF THE MEMBERS OF PARLIAMENT WITH
BUSINESS AND UNDECLARED ENTREPRENEURIAL ACTIVITIES
13.1. Connection of the Members of Parliament with Business
13.2. Undeclared Entrepreneurial Activities of the Members of Parliament
CHAPTER 14. PROBLEMS IN THE ACTIVITIES OF THE PARLIAMENT AND
RECOMMENDATIONS OF TRANSPARENCY INTERNATIONAL GEORGIA

35
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44
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46
46
47
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54
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ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

INTRODUCTION
Transparency International Georgia conducts an annual assessment of the Parliaments activities as part of
its parliamentary monitoring program. The parliamentary team of our organization is actively engaged in the
process of monitoring parliamentary performance. It publishes periodic reports in order to inform and update
the public on activities of the Parliament and ensure transparency of its performance.
The parliamentary team of Transparency International Georgia has offices in parliamentary buildings both
in Tbilisi and Kutaisi. TI Georgias 2015 report on the Parliaments performance is based upon analysis of
the information obtained by our organization, observations of our parliamentary offices and statistical data
retrieved from the Parliament.1
The report also presents results of the public opinion poll conducted by CRRC throughout Georgia in March
of 2016 upon request of Transparency International Georgia. According the survey, 2032 randomly selected
respondents were interviewed (except for regions densely populated by ethnic minorities and occupied
territories). The survey is representative for the whole country and average margin of error makes up 3.2%.
We would like to extend our particular gratitude for cooperation to the Organizational Department of the
Parliament of Georgia and its Supervisor Eter Svianaidze.

CHAPTER

GENERAL INFORMATION ABOUT THE

PARLIAMENT

The Parliament is the countrys supreme representative body that exercises legislative power, defines primary
directions in the countrys domestic and foreign policies, controls activities of the Georgian Government within
the constitutional framework and exercises other powers granted by the Constitution, other legislative acts
and regulations of the Parliament.
The Parliament consists of 75 members elected through the proportional system and another 73 members
elected through the majoritarian system. The Parliament gets elected for a period of 4 years.
Present Parliament is the parliament of the 8th convocation; it was elected on the 1st of October, 2012 and
its authority expires in 2016, after acknowledgement of authority of the legislative body elected through the
parliamentary elections.
Parliamentary Committees play a vital role in the performance of the Parliament. Committees are established
to facilitate preliminary preparation of legislative issues, promote implementation of decisions adopted by the
Parliament, exercise control over activities of the Georgian Government and the bodies accountable to the
Parliament. The Parliament establishes committees for the period of its own authority.
The following are the Parliamentary Committees:








4

Agrarian Issues Committee;

Human Rights and Civil Integration Committee;
Education, Science and Culture Committee;
Environmental Protection and Natural Resources Committee;
Sector Economy and Economic Policy Committee;
Diaspora and Caucasus Issues Committee;
Committee on European Integration;
Defense and Security Committee;

The report presents information as of December 31, 2015

SPRING, FALL AND EXTRAORDINARY SESSIONS

Legal Issues Committee;

Regional Policy and Self-governance Committee;
Foreign Relations Committee;
Procedural Issues and Rules Committee;
Budget and Finance Committee;
Sports and Youth Issues Committee;
Healthcare and Social Issues Committee.

In addition, there are factions formed in the Parliament. Factions represent groups of MPs (at least 6 Members of the Parliament), who have come together to achieve their common political goals. Key objective of a
parliamentary faction is to express and pursue its political course with respect to domestic and foreign political
issues in the supreme legislative body.
The Parliament of the 8th convocation had the following composition in 2015:
Factions in the Parliamentary Majority:

The Georgian Dream;

The Georgian Dream - Republicans;
The Georgian Dream - Conservatives;
The Georgian Dream National Forum;
The Georgian Dream Entrepreneurs;
Independent Majoritarians For Powerful Regions;
Non-party, Independent Majoritarians;

Minority Factions:
The United National Movement;
The National Movement - Majoritarians;
The National Movement - Regions;
The faction Free Democrats does not represent either the majority or the minority.
In addition, there are eight independent members, who are not affiliated with any faction:
Davit Bezhuashvili Majoritarian MP (Tetritskaro);
Giorgi Gachechiladze by party list;
Koba Davitashvili by party list;
Murman Dumbadze Majoritarian MP (Batumi);
Zurab Japaridze - by party list;
Pavle Kublashvili - by party list;
Giorgi Khachidze by party list;
Giorgi Meladze by party list.

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

CHAPTER

GENERAL STATISTICS

Based on the information provided by the Parliaments Organizational Department, during Spring, Fall and
Extraordinary sessions of 2014 the Parliament held 65 plenary sessions including 19 extraordinary ones.
7 sessions failed due to absence of quorum. Over the reporting period, the Parliamentary Bureau held 129
meetings and the committees - 668 meetings.

Diagram 1. Number of Held Committee Meetings

NUMBER OF HELD COMMITTEE MEETINGS

Agrarian Issues Committee

Human Rights and Civil Integration
Committee
Education, Science and Culture
Committee
Environmental Protection and
Natural Resources Committee

50

27

28

Sector Economy and Economic

Policy Committee

75

Diaspora and Caucasus Issues

Committee

67

47

Committee on European Integration

31

36

Defence and Security Committee

Legal Issues Committee

39

57
41

24
78

Regional Policy and

Self-governance Committee
Foreign Relations Committee

41
27

Procedural Issues and

Rules Committee
Budget and Finance Committee
Sports and Youth Issues Committee
Healthcare and Social
Issues Committee

SPRING, FALL AND EXTRAORDINARY SESSIONS

The minority boycotted work of the Parliament during Fall sessions and refused to attend plenary sessions
on September 17-18, October 27-28 and November 11-13.

Over the reporting period, one committee meeting failed due to absence of quorum (meeting of the
Legal Issues Committee).
Over the period of 2015 Spring, Fall and Extraordinary sessions, the Parliament adopted 490 laws, 1601
decrees; 49 international treaties, agreements and conventions were ratified, 1 resolution, 2 statements
and 1 application.
In 2015, the President applied his right of veto once on July 31 and imposed a veto on amendments to
the Law on the National Bank.

Over the reporting period, 64 legislative proposals were submitted to the Parliament. Zurab Vanishvili was
a natural person to submit the greatest number of proposals (6 legislative proposals); as for a legal person,
the greatest number of initiatives came from the union of civil and political organizations In the Name of the
Lord Lord is our Truth (4 proposals).
Out of submitted 64 legislative proposals, the Parliament prepared:
4 positive conclusions
14 negative conclusions
In one case, two draft laws were initiated (proposed by the Public Defender)2
In 3 cases, authors recalled their proposals
In one case, a working group was set up3
No decision was adopted with respect to 41 legislative proposals

Diagram 2. Initiators of laws adopted during Spring, Fall and Extraordinary Sessions of 2015
INITIATORS OF LAWS ADOPDET DURING SPRING, FALL AND EXTRAORDINARY
SESSIONS OF 2015

Committees 106

Fractions 3

A/R Ajara 1

Government
of Georgia 326

Individual MPs 161

This information was provided by the Organizational Department of the Parliament, however the information provided by the Committees showed twice the amount of initiated draft laws. See 11.2
3
This information was provided by the Organizational Department of the Parliament, however the information provided by the Committees showed twice the amount of initiated draft laws. See 11.4
2

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

CHAPTER

IMPORTANT EVENTS

3.1 ELECTION OF PUBLIC OFFICIALS BY THE PARLIAMENT

The Parliament of Georgia elects, appoints and approves officials of executive bodies and independent
authorities in line with the rules stipulated by the Georgian legislation.
Appointment of the Chairman of the Supreme Court by nomination of the President of Georgia was a
particularly remarkable event in 2015.
Following a reform undertaken in 2015, a new structural unit State Security Service was established and its
Head was appointed by the Parliament for a term of 6 years. Following the prosecution reform, the legislative
body elected the Chief Prosecutor for a term of 6 years.
List of public officials elected by the Parliament in 2015:

February 4, members of the Central Election Commission: Zurab Khrikadze, Giorgi Javakhishvili,
Giorgi Chikabiradze
February 19, members of the Georgian National Communications Commission: Merab Katamadze,
Eliso Asanidze, Giorgi Phruidze
March 20, Chairperson of the Supreme Court - Nino Gvenetadze
March 20, member of the Constitutional Court - Merab Turava
June 12, Judges of the Supreme Court were elected -Mzia Todua and Ekaterine Gasitashvili
July 22, Head of the State Security Service - Vakhtang Gomelauri
September 18, members of the Council of the Financial Supervision Agency Eprem Urumashvili,
Ekaterine Galdava, Irakli Kovzanadze, Sasha Ternes; Konstantine Sulamanidze was appointed as Head
of the Financial Supervison Agency
October 27, members of the Prosecutorial Council - Polikarte Moniava, Irma Ckadua
October 27, member of the Energy and Water Supply Regulatory Commission - Giorgi Pangani
November 12, member of the Disciplinary Committee of Judges of Common Courts -Ketevan Bekauri;
Igor Kopaliani
November 27, Chief Prosecutor of Georgia - Irakli Shotadze

3.2 APPROVAL OF THE OPEN PARLIAMENT GEORGIA ACTION PLAN

On July 17 of 2015, the Parliamentary Bureau approved the Open Parliament Georgia Action Plan 20152016, which was drafted by the Inter-Factional Group of the Parliament of Georgia and the Open Parliament
Georgia Working Group.
Work on the action plan started in April of 2015 and Members of the Parliament, heads of structural units of
the Parliament, representatives of non-governmental and international organizations, including TI Georgia
were actively involved in its development.
The action plan envisages fulfillment of 18 commitments, which will promote openness and accountability of
the Parliament including: involvement of citizens in the legislative process; availability of information, simplified
access to parliamentary information for people with disabilities; introduction of contemporary technologies
and innovative approaches and etc.4

4
Six recommendations of Transparency International-Georgia were considered in the Open Parliament Georgia Action Plan; the
recommendations pertained to physical presence of people at legislative discussions, commitment to present due justification for
moving changes to the agenda, refining contents of explanatory notes and ensuring proactive publication of parliamentary committee
reports and conclusions.

SPRING, FALL AND EXTRAORDINARY SESSIONS

It is noteworthy that at 2015 Mexico Global Summit of Open Government Partnership (OGP) in 2015, Georgia
was declared a winner in OGP Champions Award among 65 member states of OGP. The call aimed to
demonstrate the best case of cooperation between governmental and civil sectors in the course of the action
plan development.

3.3 ESTABLISHMENT OF INTERIM INVESTIGATION

COMMISSION ON SAKDRISI-KACHAGIANI GOLD MINE
Establishment of an interim investigation commission to study developments around Sakdrisi-Kachagiani
Gold Mine was an issue still standing acute in 2015.
Initiative on establishing an interim investigation commission was first put forward in 2014 by the member of
the Free Democrats, Nino Goguadze. 58 MPs voted in favor of the resolution on setting up an investigation
committee whereas 14 MPs were against.
After adopting a decision on feasibility of setting up an investigation commission, regulations of the Parliament
require that the Parliament first support draft resolution on establishing a commission and it will be formed only
afterwards. The draft resolution should specify validity period of the commission and identity of its members,
including the Chairman. That was right the issue that needed to be resolved in 2015.
The Procedural Issues and Rules Committee presented quotas of proportional representation in the interim
commission on Sakdrisi-Kachagiani Gold Mine. Composition of the commission was defined by 11 members.5
On March 4 of 2015, the Parliament of Georgia voted against approval of the draft resolution on establishing
an interim investigation commission on Sakdrisi-Kachagiani Gold Mine. The issue of establishing an interim
commission was put forward by the United National Movement as well at the plenary session in 2015. However, the plenary session didnt support it.

3.4 CHANGES IN THE PARLIAMENTARY MAJORITY AND MINORITY

Changes in the composition of the parliamentary majority and minority represented an important event over
the reporting period. Specifically:

MP mandate of Tina Khidasheli (Faction Georgian Dream - Republicans) was terminated as she was
appointed as Minister of Defense; the fact was followed by respective changes in the composition of MPs
and the vacated place was taken up by Tamar Khidasheli.
Member of the Parliament Gigla Agulashvili (Faction Georgian Dream - Republicans) was appointed as
Minister of Environment and Natural Resources Protection of Georgia; Teimuraz Nergadze was elected
as an MP through the party list.
After the death of the MP Nauli Janashia, Levan Tarkhnishvili was elected as a member of the Parliament.
David Sakvarelidze MP mandate was terminated; his place was taken up by Eka Kherkheulidze.
Pavle Kublashvili, Giorgi Khachidze, Giorgi Meladze and Zurab Japaridze left the minority to become
independent members of the Parliament.
Tamar Kordzaia left the Georgian Dream faction and joined the faction of the Republicans. She left the
party Georgian Dream as well and joined the Republican Party.
David Saganelidzes MP mandate was terminated, because he was appointed as the CEO of the Partnership Fund. His MP place was taken by Vladimir Achba through the party list.

One member of the faction Georgian Dream was nominated in the composition of the commission. One member would be included
from each of the following factions: Georgian Dream-Republicans, Georgian Dream-Conservatives, Georgian Dream-National
Forum, Georgian Dream-Entrepreneurs, Non Party, Independent Majoritarians, National Movement - Majoritarians, National
Movement-Regions and Independent MPs. Quota of the faction United National Movement was defined by two members; however,
they gave one seat from their quota to the faction Free Democrats. As a result, they came up with two seats in the commission.
5

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

3.5 THE PRESIDENTS ADDRESS TO THE PARLIAMENT

On March 31 of 2015, the President of Georgia delivered his annual speech at the Parliament of Georgia.
The President dwelled upon bottlenecks in state governance, structural overlap, and ambiguity on the part of
responsible parties. As he stated, these were right the factors to account for weakened institutional sustainability, ineffective and enfeebled governance and dragged processes. Economic growth and employment were
defined as top priorities by the President; he welcomed and endorsed state projects undertaken in healthcare,
agriculture, business sector; meantime, he called upon the legislative authorities to cooperate more closely
and intensively with the business sector in the course of working out new regulations.
The President touched upon security as well; as he stated, security and welfare were directly intertwined with
European and Euro-Atlantic integration; Georgia needed to come up with specific and measurable outcomes
at Riga Summit to secure European prospects and benefits of Euro integration for the population.
The President talked about the arms race and growing militarization of the occupied territories. He emphasized
the need to engage in direct dialogue with Abkhazians and Ossetians to come up with mutual vision and plans
of conflict settlement. European future of Georgia would be the best guarantee to maintain self-sufficiency
of Abkhazian and Ossetian people; however, Georgia wouldnt remain captured in frozen conflicts and would
persist in strive towards modernization.
The President touched upon the need to stop the Russian soft power, which required consolidation of
pro-Western agenda within the country.
As the President stated, it was vital to modify the majoritarian elections system and initiate respective changes
during the spring session. In order to expand representation of women, the President strongly supported
introduction of the quoting system in the electoral legislation.
He put a particular emphasis on the need of strengthening the court system and passing urgent reforms
for the Prosecution system and the Ministry of Internal Affairs.

3.6 INITIATION OF CONSTITUTIONAL AMENDMENTS AND

LEGISLATIVE AMENDMENTS RELATED TO ELECTORAL SYSTEM
During 2015, the Parliament of Georgia initiated twice the constitutional amendments required for reforming
the voting system.
On September 18 of 2015, the Parliament of Georgia passed a resolution6 by 81 votes on moving amendments to the Constitution of Georgia, publishing a draft of the Constitutional Law of Georgia and establishing
a steering commission for its public consideration.
81 members of the Parliament were initiators of the legislative amendments.
Congruent to the draft Constitutional Law of Georgia, parliamentary elections following the ones in 2016 will
be fully held through proportional system in multi-mandate election districts; hence, currently effective 73
majoritarian districts will be abolished. The draft also envisages reduction of the electoral threshold from
the current 5% to 4%. In case of approving the draft, first assembly of the Parliament elected in 2016 will be
defined as an official date of its enactment.
On December 11 of 2015, the Parliament of Georgia passed the resolution by 88 votes on amending the
Constitution of Georgia, promulgating the draft Constitutional Law of Georgia and establishing a special commission for its public consideration. In this case, amendments were initiated by 204 161 citizens of Georgia.

10

18 September 2015 Resolution of the Georgian Parliament: http://goo.gl/gPjAah

SPRING, FALL AND EXTRAORDINARY SESSIONS

The amendments provide for introduction of a new regional elections system of proportional representation,
under which the Parliament of Georgia will be staffed with 75 members elected through common proportional
system and 75 members elected through regional proportional system. In case of supporting constitutional
amendments, parliamentary elections of 2016 will be held in line with the newly established rules.
Be reminded that abolition of the current majoritarian system was a part of the election program7 of the
Georgian Dream. Non-governmental organizations kept criticizing the current elections system and were
actively advocating for abolishing the majoritarian system.
On December 23, the Parliament adopted amendments to the Election Code of Georgia at the third hearing.
By the amendments, election districts have been defined under a new rule.
Adoption of the draft organic law was triggered by the ruling of the Constitutional Court of Georgia of May 28
of 2015, by which the first part of article 110 of the Election Code of Georgia, stipulating there would be 10
single-mandate constituencies in Tbilisi for the next parliamentary elections, happened to contradict article
14 and first clause of article 28 of the Georgian Constitution. Amendments moved to the initiated draft law
pertained to redrawing borders of election districts. Even though the initiated draft law did reduce discrepancy
between numbers of voters among different majoritarian districts, it still failed to align the system with the
ruling of the Constitutional Court, which in its turn is based upon the standards of the Venice Commission
with respect to equality of votes.8

3.7 POSTPONING ENACTMENT OF DRAFT LAWS

The government keeps on the practice of postponing enactment of important amendments. In 2015, the
Parliament of Georgia postponed enactment of the following 11 laws.9
1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
11.

Amendments to the Law of Georgia on Aliens and Stateless Persons (07-3/410)

Amendments to the Civil Code of Georgia (07-3/426)
Amendments to the Law of Georgia on Accounting and Financial Audit (07-3/439)
Amendments to the Law of Georgia on Public Service (07-3/442)
Amendments to the Law of Georgia on Insolvency Proceedings (07-3/526)
Amendments to the Criminal Procedure Code of Georgia (07-3/528)
Amendments to the Law of Georgia on Higher Education (07-2/342)
Amendments to the Law of Georgia on Civil Security (07-2/418)
Accounting and Financial Audit
Amendments to the Georgian Tax Code (07-2/417)
Prevention of Domestic Violence, Protection and Assistance to Victims of Domestic Violence (07-3/457)

In some cases, enactment of the same law may be postponed for several times. For instance, during 20142015 the legislative body repeatedly postponed enactment of the following amendments:

Obligation of natural persons to use cash registers

Preparation of financial statements in line with International Financial Reporting Standards and Financial
Reporting Standards for small and medium-sized enterprises;
Running insolvency proceedings through electronic system, which implies use of electronic media to
execute activities envisaged by the law in the course of the proceeding. In addition, terms were extended
and tax benefits were not lifted on import of tobacco raw materials and products.10

https://goo.gl/RT5z4z
Transparency International Georgia ,,Government-proposed majoritarian district reform may be unconstitutional, December 10, 2015
http://www.transparency.ge/node/5704
9
8 laws through simplified procedure; 3 laws through general procedure
10
Enactment of provisions of three loans was postponed: Law on Moving Amendments to Tax Code; Law on Accounting and Financial
Audit and Law on Insolvency Proceedings.
7
8

11

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Reasons presented in explanatory notes are not convincing; in most cases, the same grounds are repeatedly
stated to account for postponed enactment of laws. According to explanatory notes, the following are the
most frequent reasons for postponement:

Lack of time to prepare and adopt relevant legal acts

Lack of sufficient time for administration
Problems with financial and human resources

In some cases, explanatory notes do not present reasons for postponing draft laws altogether. They do
not indicate which specific circumstances served as an obstacle for the authorities to duly fulfill undertaken
commitments (for example, failure to develop or administer an act within defined timeframe).
On the basis of analyzing current practices, it can be stated that the following are the major problems that
account for postponed enactment of laws:

Failure to duly plan a legislative cycle current practice shows that in the course of drafting laws,

appropriate analysis is not made of the timeframe that will be required for enactment. It could be explained
by the fact that in general initiators do not have the relevant information and adequate knowledge on the
mechanisms and process of execution, on administrative and other costs.

Inadequate oversight by the Parliament - before enactment of amendments, there is no monitoring

exercised over the relevant authorities and it is not assessed which specific steps and measures were
applied for development of legislative framework or other needs. In addition, the legislative body should
ensure that in case of postponement, due justification is provided by the initiator.

Disorganized processes in public policy it is reflected in poor internal coordination between different
governmental bodies in the process of implementing legislative amendments, as well as failure to involve
various stakeholders and etc. As a result, it seems that the relevant authorities or persons are often unable
to carry out required preparatory work to ensure subsequent implementation of laws.

Lack of preliminary analysis to determine expected legislative impact on various fields - Explanatory notes of draft laws frequently do not contain analysis on the impact laws will have on the economy
and other crucial sectors of the country. Explanatory notes do not present either the negative effects
that could arise from their adoption or enactment, which poses serious problems in terms of proper
regulation of the process.

3.8 VOTE OF CONFIDENCE TO THE GOVERNMENT

At the extraordinary session on December 30, the Parliament approved composition of the Cabinet of Ministers
with 86 votes against 26. After resignation of Irakli Gharibashvili from the position of the Prime Minister on
December 23, it became necessary to declare vote of confidence to the new composition of the Government
over again. For approval of the Parliament, the President nominated former Foreign Minister Giorgi Kvirikashvili
as candidate to the Prime Minister and presented the following candidates to membership of the government:








12

Minister of Economy and Sustainable Development Dimitri Kumsishvili

Minister of Energy - Kakha Kaladze
Minister of Foreign Affairs Mikheil Janelidze
Minister of Health, Labor and Social Affairs David Sergeenko
Minister of Internally Displaced Persons from the Occupied Territories, Accommodation and Refugees
- Soar Subari
Minister of Education and Science Tamar Sanikidze
Minister of Agriculture Otar Danelia
Minister of Regional Development and Infrastructure Nodar Javakhishvili

SPRING, FALL AND EXTRAORDINARY SESSIONS

Minister of Finance Nodar Khaduri

Minister of Culture and Monument Protection Mikheil Giorgadze
Minister of Sport and Youth Affairs - Tariel Khechikishvili
Minister of Defense Tinatin Khidasheli
Minister of Justice - Tea Tsulukiani
Minister of Internal Affairs Giorgi Mghebrishvili
Minister of Corrections and Probation Kakha Kakhishvili
Minister of Environmental Protection and Natural Resources Gigla Agulashvili
State Minister of Euro-Atlantic Integration David Bakradze
State Minister of Reconciliation and Civil Equality - Paata Zakareishvili
State Minister of Diaspora Issues Gela Dumbadze

Composition of the Georgian Government presented to the Parliament for getting vote of confidence and the
governmental program for Powerful, Democratic and United Georgia got registered in the Parliament as a
legislative package on December 27, whereas hearings of respective committees were held on December
28. The very same day, the parliamentary minority had a chance to hear address of the Prime Minister
Candidate. According to Mr. Kvirikashvili, major breakthrough in the economic development would represent
a cornerstone for performance of the Cabinet of Ministers for the coming period. He listed development of
tourism, agriculture, energy sector, transport and communications, full utilization of the Silk Road potential
among the top priorities for the country.

13

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

CHAPTER

IMPORTANT LEGISLATIVE AMENDMENTS

4.1 PROGRESSIVE LEGISLATIVE AMENDMENTS

4.1.1 REFORM OF CAPACITY INSTITUTE OF GEORGIA
On March 20 of 2015, the Parliament of Georgia at the 3rd hearing adopted a legislative package, which
provided for passing reforms to the legal capacity institute. The legislative amendments were triggered by
the ruling of the Constitutional Court of Georgia of October 8, 2014, which rendered the previously effective
legislative model of capacity unconstitutional. With a view to aligning the legislation with the ruling of the Constitutional Court, a working group was established under the supervision of MP Tamar Kordzaia. Legislative
amendments were initiated by the Legal Issues Committee.
Congruent to the legislative amendments, individual assessment will be applied to those persons
who were deemed incapable by the law on the grounds of dementia or mental disorder. Such
assessment will no longer be solely based upon the medical model and social assessment system
will be included as well. Meantime, notions of dementia and mental disorder have been extracted
from the legislation and instead, notion of assistance recipient has been introduced. An assistance
recipient is deemed to be a capable person who on the basis of individual assessment of psycho-social needs, may be assigned an assistant by the court, i.e. a person, who will assist the recipient in
realizing his rights and protecting his interests.

Assessment of Transparency International Georgia
Reform of Capacity Institute represents an important step forward in the field of human rights. As opposed
to earlier legislative regulations, which used to automatically deprive disabled persons of all rights, the current legislation has switched to individual-based approach; under the given model, the court will apply an
expert study to assess in which particular field of social life a person needs assistance and restrictions will
be imposed accordingly.
As a result of the given change, the legislation has come in conformity with international and constitutional
standards.
4.1.2 CODE OF JUVENILE JUSTICE
On June 12 of 2015, the Parliament passed the Code of Juvenile Justice and moved amendments to accompanying draft laws. Congruent to the Code of Juvenile Justice, imprisonment as a form of punishment
should be applied to juveniles only in cases of extreme emergency. Adopted regulations strictly prohibit
sentencing of minors to life imprisonment. A juveniles detention period from the first appearance
to the pre-trial hearing has been reduced from 60 to 40 days, whereas the criminal record shall be
expunged right upon serving the sentence.
Assessment of Transparency International Georgia
Code of Juvenile Justice definitely is a step forward for the Georgian Judicial System; it is essential that all
branches of the government take coherent and consistent measures and thus provide for its effective implementation.11 The code envisages establishment of specialized institutions that will solely focus on study of
juvenile cases. It is particularly welcome that specialized prosecutors, judges and policemen will be introduced.
4.1.3 BAN ON EARLY MARRIAGES WITH PARENTAL CONSENT
On December 16 of 2015, the Parliament of Georgia approved the legislative amendments imposing restrictions on registration of minors marriages. The draft law had been worked out on the basis of a proposal
by the Public Defender and was initiated by the Legal Issues Committee. Tamar Kordzaia, Member of the
Parliament acted as a speaker.
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11

Statement of the Coalition on the Code of Juvenile Justice prepared by the Ministry of Justice, April 16, 2015 http://goo.gl/niZZGE

SPRING, FALL AND EXTRAORDINARY SESSIONS

Under the proposed amendments, the minimum age of marriage will increase from 16 years to 17. The
new law stipulates as well that parents and guardians will no longer have the right to give consent
to early marriages as the court will be the only official body authorized to issue such permit. Under
the amendments, birth of a child may serve as the only valid ground for approving minors marriage.
Congruent to the draft law, such accommodation of the problem will set out a norm for transitional
period, which will become invalid in one year from its enforcement. By the Civil Code of Georgia, 18
years will be determined as the minimum age of marriage from January 1 of 2017.
Assessment by Transparency International Georgia
Tightening up registration of early marriages and increasing the minimum age of marriage represent a significant step forward in terms of women rights protection. It is noteworthy that in the first half of 2015, 265
marriages (with at least one person being underage) of persons from 16 to 18 years were registered; 1527
underage mothers got registered in 2014.
4.1.4 MANDATE EXTENSION FOR THE CONFIDENCE GROUP
On December 23 of 2015, the Parliament of Georgia passed a law introducing additional control mechanisms
on already performed and future procurements of the Ministry of Internal Affairs. Irakli Chikovani, member of
the faction Free Democrats was the author of the initiative that envisaged changes to the Law of Georgia
on State Procurement.
Following the moved amendments, the Ministry of Internal Affairs shall present to the Legal Affairs and
Defense and Security Committees detailed information about pending unclassified procurements,
provided that estimated price of goods or services exceeds 2 000 000 GEL and estimated cost of
pending construction work exceeds 4 000 000 GEL; in addition, at least once a year it will be obliged
to submit a summary report on performed unclassified procurement activities.
The draft law was registered in the Parliament on the 13th of February, 2015. Review of the draft took quite
a long time. At the second hearing, 15 members of the Parliament voted against the draft 14 of them were
from the faction the Georgian Dream while 1 was a member of the Georgian Dream National Forum.
The draft law was adopted at the third hearing with 85 votes in favor and 0 votes against.
Assessment of Transparency International Georgia
Adoption of the law is a significant step forward in terms of increasing accountability of the Ministry of Internal
Affairs towards the Parliament, ensuring greater transparency of the procurement process run by the Ministry
and increasing public awareness.
4.1.5 LEGAL STATUS OF ALIENS
Tightened visa regulations, that took effect on September 1 of 2014, have repeatedly become a subject of
criticism for representatives of civil and business sectors as well as government officials. The new law prepared
by the Ministry of Justice on Legal Status of Aliens and Stateless Persons has imposed unjustified barriers for
foreigners willing to arrive in Georgia for purposes of tourism, family reunification or labor, adversely affecting
overall investment climate of the country.
Since the day of its enactment on September 1 of 2014 to May 2015, the law had been amended three times;
however, major problems still remained unsolved.
Transparency International Georgia closely followed and kept watch over the given reform; we repeatedly
expressed concerns about inherent problems in the migration policy. We provided a detailed outline of prob15

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

lems posed by the new law and addressed the government with our recommendations as early as 2014. Only
insubstantial part of suggestions were accounted for; a great number of problems still remained unaddressed
in visa and migration rules of the country. Thats the reason Transparency International Georgia addressed
the Parliament with a legislative proposal, offering an effective accommodation of the existing problems. After
the legislative proposal of TI Georgia, on March 13 the government registered in the Parliament fourth draft
of amendments, which covered large part of our recommendations. Transparency International Georgia was
actively involved in committee meetings, at which our legislative proposal was considered along with the
government draft laws.
As a result of discussions, the Foreign Relations Committee accepted nearly all of our recommendations and
adopted the draft law on April 28 at first hearing. Ultimately, on May 8 the Parliament adopted amendments
by three hearings and removed major part of unreasonable barriers. It is particularly noteworthy that in the
course of elaborating on the given issue, the government, the parliament and non-governmental organizations
have demonstrated effective and productive cooperation. Constructive approach of draft law authors towards
our recommendations was highly welcome and we hope that such practice of cooperation will persist in future
as well. As a result of amendments, the government adopted a resolution12 on June 5 allowing citizens of
the countries having no visa regime with Georgia to stay in the country for 360 days instead of previously
defined 90 days.
Assessment of Transparency International Georgia
The Parliament of Georgia took into account overwhelming majority of amendments set out in our legislative
proposal. One important issue that the legislative body chose to decline pertained to denying issuance of
the residence permit on the grounds that a persons stay in Georgia could be unadvisable (article 18,
paragraph 1, clause a). The given clause is ambiguous and its broad interpretation may give rise to
certain problems. To obtain a visa, a person goes through security checks in Georgia; hence, checking
a person for the same goal for the second time is devoid of rationale and leads to additional artificial
barriers.

4.2 POSITIVE LEGISLATIVE AMENDMENTS, NEEDING REFINEMENT

4.2.1 PUBLIC SERVICE REFORM
Following restoration of independence, Georgian public service has experienced a number of reforms. On
November 11 of 2015, a completely new law13 was adopted on Public Service, key provisions of which will
take effect from January 1 of 2017. The law has been developed by the Public Service Bureau.
Assessment of Transparency International Georgia
Overall, adoption of the new Law on Public Service may be regarded as a positive development in
terms of staff policy regulation. We welcome and positively assess transformation of the vicious institute
of acting persons, introduction of annual appraisal and certification system for officials; in addition,
possibility to check/monitor public officials asset declarations represents a significant achievement.
However, we believe that the following areas still remain problematic:
Increase of upper limit of a probation period from the current 6 months to 12. 12-month probation
period will result in reduced motivation on the part of qualified candidates to get employed in the public
sector; it also increases the risk that higher-ranking officials may use their power for political ends;
Expanding circle of LEPLs, to which the Law on Public Service, i.e. appointment of officials through a
contest, does not apply. Practice of appointing candidates without a contest needs to be driven to
minimum in order to eradicate associated risks of nepotism and political patronage.
With respect to the public service reform, you may find more details in our research14 and assessment15 of
the Law on Public Service.
List of country nationals, that may enter Georgia without a visa:https://goo.gl/0HG2xw
https://goo.gl/nfXLgv
14
TI Georgia assesses certain aspect of civil service reform: http://goo.gl/JzYJg6
15
Strengths and weaknesses of a new draft law on public service: http://goo.gl/5KoDRk
12
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16

SPRING, FALL AND EXTRAORDINARY SESSIONS

4.2.2 LAW ON THE BUSINESS OMBUDSMAN

On May 28 of 2015, the Parliament of Georgia adopted the law on the Business Ombudsman.16 The given
law aimed to introduce a separate legislative act that would regulate authority of the business ombudsman.
Before its adoption, authority of the business ombudsman, key principles and forms of his activity used to be
defined by the article 42 of the Tax Code of Georgia and by the resolution N92 of the Georgian Government
adopted on February 23 of 2011 on the powers of Tax Ombudsman, key principles and forms of his activities.
Under the new law, Tax Ombudsman has been replaced with the notion of Business Ombudsman. The law
sets forth key principles of his/her activities. Business Ombudsman is appointed by the Prime Minister in
agreement with the Chairman of the Parliament and his remuneration is determined by the relevant act of
the Prime Minister. The law stipulates grounds for terminating authority of the Business Ombudsman. One of
the reasons could be respective decision by the Prime Minister.
Assessment of Transparency International Georgia:
Transparency International Georgia welcomes statutory regulation of the Business Ombudsmans activities.
However we believe that merely replacing a resolution with a law and moving purely terminological
change to the position of the Tax Ombudsman wont suffice to streamline functionality of the institution. We had several major remarks with respect to the draft law, though they were not shared by the
initiator of the law that is, the Government. Remarks of International Transparency Georgia pointed out
that it was necessary to amend rule of taking Business Ombudsmans office in a way that would promote
sustainability and independence of the institution. It could be primarily achieved by increasing accountability
of the Business Ombudsman towards the Parliament and putting the Parliament in charge of appointment
and dismissal of the Ombudsman.17
4.2.3 LAW ON LABOR MIGRATION
On April the 1st of 2015, the Parliament of Georgia adopted a law on Labor Migration. The law aimed to introduce effective mechanisms that would regulate labor migration in Georgia, encourage legal labor migration into
the country, eradicate practices of illegal labor migration and protect against the trafficking. The law defined:
issues of labor migration outside Georgia for Georgian citizens, aliens holding permanent residence permit
and persons having a status of stateless person in Georgia as well as obligations of an individual entity or
sole entrepreneur, carrying out labor activities outside Georgia.
Initial version of the draft law envisaged obligation to register requirement, which implied the following: if a
local employer wanted to hire an alien, he should have registered a relevant requirement in the Ministry of
Labor, Health and Social Affairs. In case a citizen of Georgia with relevant qualification wouldnt be found
within 7 days, the employer would be entitled to sign an employment contract with the foreigner. The draft
law was negatively assessed by the majority of business and non-governmental sector representatives; as a
result, it went through significant amendments; ultimately, trafficking became a focal point in its final version.
Assessment of Transparency International Georgia:
In the process of considering the draft law, Transparency International Georgia put forward a number of
remarks and suggestions. The principal remark pertained to the obligation of registration presented in the
initial version; with the given requirement, the state was abruptly interfering in private affairs, setting unjustified
barriers for companies; it entailed introduction of additional bureaucratic mechanisms and increasing costs
of state apparatus. In addition, it implied unconstitutional expansion of the government authority in the field
of labor relations. Adoption of the draft law in the given form would have a negative impact on the economy
of the country, future prospects of development and overall investment climate.18 The given norms were
removed from the draft law.

http://info.parliament.ge/#law-drafting/8234
Transparency International Georgia - New law must ensure institutional independence of Business Ombudsman, March 18, 2015
http://goo.gl/NJzWOR
18
Transparency International- Georgia, Draft Law on Labor Migration: new, unjustified barriers for business, February 9, 2015,
http://goo.gl/iOomC9
16
17

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ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Since labor activities of Georgian citizens outside Georgia required regulation, adoption of the final
version of the Law on Labor Migration should be assessed as a positive development.
4.2.4 LEGISLATIVE AMENDMENTS TO DRUG-RELATED OFFENCES
On July 8 of 2015, the Parliament of Georgia approved amendments to the Criminal Code of Georgia (Ministry of Justice, the Prosecutors Office and Ministry of Internal Affairs were the authors, the Government of
Georgia was an initiator). By the given amendments, illicit preparation, production, purchase, keeping and
shipment of drugs, their analogy, precursors or similar psychoactive substances have been separated
from their illicit realization. In addition, severity of punishment has been changed; namely, for illicit
preparation, production, purchase, keeping, transfer and shipment of such substances maximum
term of imprisonment has been reduced from previously defined 11 to 6 years. As for realization of
drugs, liability has been toughened and term of imprisonment has been defined from 6 to 11 years. Tougher
approaches have been introduced towards qualifying norms as well. The draft law set forth grounds for lifting
liability from a person in case of voluntary surrender.
It is noteworthy that on October 24 of 2015, the Constitutional Court of Georgia declared paragraph 2 of
article 260 of the Criminal Code, which envisaged imprisonment of a person for consumption of marijuana,
unconstitutional. Congruent to the ruling of the Constitutional Court, dried marijuana up to 70 grams, for which
a plaintiff faced a danger of imprisonment, didnt represent that big amount to explicitly indicate intention or
threat of realization. Hence, the Court announced unconstitutional the normative content of the provision,
which allowed imprisonment as punishment for purchase/keeping of marijuana for personal use.
Assessment of Transparency International Georgia
Separation of illicit preparation, production, acquisition, keeping and shipment of drugs from their illicit realization should be considered as a step forward.
It is recommended that the government revises drug policy, develops a common vision on new standards and timely aligns the legislation with the ruling of the Constitutional Court.

4.3 NEGATIVE LEGISLATIVE AMENDMENTS

4.3.1 SEPARATION OF THE SUPERVISION FUNCTION FROM THE NATIONAL BANK
On September 3 of 2015, the Parliament of Georgia moved amendments to the Law of Georgia on the National Bank. The National Bank will be stripped of its banking supervision function and it will be transferred
to an agency, which has been established as a legal person of public law.
The civil society, including Transparency International Georgia was involved in discussions of the draft law
and submitted its remarks to the Parliament. The draft law was criticized by the parliamentary opposition,
Association of Banks of Georgia and Business Ombudsman, representatives of civil society (including Transparency International Georgia) as well as representatives of the World Bank and the Monetary Fund. NGOs
negatively assessed and criticized the reform; they even released a joint statement in which they warned the
Government of the possible negative consequences in case of adopting the draft law. Nevertheless, during
committee hearings, the Parliament didnt move substantial changes to the draft.
On September 22 of 2015, the United National Movement and Free Democrats addressed the Constitutional
Court with a claim on constitutionality of amendments to the Law on the National Bank. Congruent to the
minutes record of October 12, 2015, until taking a final resolution, the Constitutional Court of Georgia would
suspend those articles of the Organic Law on the National Bank of Georgia, which restricted supervision
functions of the National Bank.19

18

19

http://goo.gl/7T1ujn

SPRING, FALL AND EXTRAORDINARY SESSIONS

On October 12 of 2015, plenum of the Constitutional Court received a constitutional claim for consideration Group of Members of Parliament (Zurab Abashidze, Giorgi Baramidze, David Bakradze and others, 39 MPs
in total) against the Parliament of Georgia.
Claimants disputed amendments to various legislative acts, including the ones moved to the Organic Law
on the National Bank, by which a legal entity of public law Financial Supervision Agency of Georgia was
established and put in charge of the functions performed by the National Bank prior to enactment of disputed
norms. According to claimants, the powers transferred to the agency were vital for supporting stable operation
of the financial sector; congruent to paragraphs 1 and 4 of article 95 of the Constitution, such powers could
only be within the competence of the National Bank of Georgia.
The Constitutional Court of Georgia concluded that before final settlement of the claim, the disputed norms
could undermine not only stability of the countrys financial and banking sector, but also lead to irreparable
damage to rights and interests of specific individuals (participants of banking relations, investors, depositors);
therefore, the Court adopted a resolution in favor of suspending the disputed norms.
Assessment of Transparency International Georgia
Prior to its adoption, we presented and highlighted shortcomings of the draft law.
In addition, Transparency International Georgia submitted to the Constitutional Court of Georgia in the framework of the amicus curiae its views on the constitutionality of the disputed provisions.
Legislative amendments pose the following problems:
The National Bank retains its constitutional power to promote stability of the financial sector; however, it
is deprived of appropriate tools and instruments.
Financial Supervision Agency is set up, which fully assumes banking supervision function of the National
Bank but it does not represent a structure subordinated to the National Bank.
The National Bank is responsible for technical and material maintenance of the Agency; however, the
Agency bears no accountability towards the National Bank
Amendments violate independence of the National Bank envisaged by the Constitution; the Bank is obliged
to carry out certain activities based on request of the Agency notwithstanding appropriateness of request.
Analysis of legal norms confirms that the amendment contradicts the Constitution, as it restricts
constitutional authority of the National Bank, leaving it with just formal powers.
4.3.2 AMENDMENTS TO EVICTION REGULATIONS
On December 11 of 2015, following tense and extensive discussions, the Parliament adopted the initiative of
the Legal Affairs Committee (author of the initiative - member of the Parliament Paata Kiknavelidze), which
provided for moving amendments to the Civil Code and the Civil Procedure Code, as well as to the Law on
Police and the Law on Enforcement Proceedings.
The proposed amendments removed section 3 of article 173 of the Civil Code of Georgia, which entitled a person without a court order to address the police with a request of evicting illegal/unlawful
possessor of immovable property, if the alleged intruder didnt have written document verifying
property ownership, legitimate possession and/or right of its disposal.20
The draft law was criticized by the parliamentary opposition, Association of Banks of Georgia, Business
Ombudsman, representatives21 of civil society (including Transparency International Georgia), as well as
representatives of the World Bank and International Monetary Fund. The presented initiative triggered contra-

Transparency International Georgia, New Eviction Rules Unreasonably Limit Property Rights, October 29, 2015
http://goo.gl/OXPXEN
21
http://goo.gl/Dz5FEo
20

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ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

dictory reactions among the business sector representatives. A number of meetings were held with committee
members. The draft law was negatively assessed by the Public Defender as well.22 In the course of ongoing
discussions, committee members held a closed meeting with representatives of the Business Association
and the National Bureau of Enforcement.23
At the second hearing of the draft law, changes were moved to the proposed initiative - as an exception, it
became possible to evict a person by the police if there was a reasonable suspicion on unauthorized intrusion
into an apartment or other premises. According to the explanatory note of the draft law, the given change
was triggered by substantial legal faults, which had been present since 2007 in non-court eviction practices,
including eviction by the police.
Assessment of Transparency International Georgia
We believe that the new regulations unreasonably restrict property ownership rights. The law-envisaged rule will lead to negative consequences for citizens engaged in Georgia-based commercial
banks, microfinance institutions, credit unions, leasing and development companies and real estate
sector. We believe that this in its turn will adversely affect economic development of the given sector. Risks
of negative consequences were not mitigated either by the amendments moved during the second hearing.
Even though the law is aimed at protecting rights of real estate owners, in particular rights of mortgagees,
it will not achieve it. After enactment of the law, real estate owners will merely be given certain time before
being evicted by the court. In addition, appeals to the court will significantly increase, which will only result in
a delay of a persons eviction. Courts will be even more overloaded, which will negatively impact consideration
of other ongoing cases.24
4.3.3 AMENDMENTS TO THE LAW ON THE NOTARIES
On December 10 of 2015, the Parliament of Georgia adopted the government-initiated draft law (author - Ministry of Justice) on moving amendments to the Law on the Notaries and the Tax Code of Georgia. Congruent
to the amendments, during the first 3 years newly appointed notaries will have to carry out notary
activities in high mountainous regions or in settlements having no appropriate outreach to notary
services. Furthermore, a notarys refusal to be allocated to a defined settlement will result in refusal
to appoint the person as a notary. Throughout the period of the notarys activities, financial assistance will
be provided by the Notary Chamber of Georgia. The law does not specify what type of financial assistance
is envisaged. According to the explanatory note of the law, financial assistance implies monthly 100 GEL
allowance for low-income notaries; in some cases, it could be reimbursement for apartment rent or provision
of required technical hardware.
Assessment of Transparency International Georgia
According to Transparency international Georgia the law imposes unjustified restrictions on the notary
services. With the presented contents the law cannot provide for achieving the set objective - delivery of notarial services to the population in the areas that are currently deprived of such services.
Gross interference of the state in the notaries activities poses long-term risks and undermines future
development of the given sector.25
Proposed provisions of the law blatantly interfere in labor rights of the notaries. It is noteworthy that concerning the notarys institute the Constitutional Court of Georgia clarified in its 13 November 2014 record that a
notarys position must regarded as the state position stipulated in Article 29 of the Constitution of Georgia and
statutory terms for its occupation must be consistent with the above-mentioned constitutional norm. Hence, it
must be reasonable and must not create artificial obstacles for holding the position. Regulations of the draft
law raise additional questions on the compliance of such extra obligations with constitutional requirements.

http://goo.gl/Npg5JX
http://goo.gl/LGxXsp
24
Transparency International - Georgia, draft law on evictions is a risk, June 5, 2015 ,http://goo.gl/2RYJf1
25
Transparency international Georgia, new draft law to undermine proper functioning of notarial services October 15, 2015,
http://goo.gl/ope9Wk
22
23

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SPRING, FALL AND EXTRAORDINARY SESSIONS

4.3.4 LAW ON STATE SECRETS

On February 19, 2015, the Parliament adopted the Law on the State Security Service. The law was initiated
and authored by the Chairman of Defense and Security Committee Irakli Sesiashvili.
The draft law:
Expands the range of those normative acts, which can be regarded as state secrets. Under the previous
law, only those normative acts could have been classified as state secrets that regulated internal activities of the Ministries of Defense, Interior Affairs, Justice, Finance, Environmental Protection and Natural
Resources, the Georgian Intelligence Service and Special State Protection Service of Georgia in the
field of defense, security and investigation. The presented draft law no longer contains the term internal
activity. Accordingly, any normative act issued by the given agencies can be classified as a state secret.
Has complicated access mechanisms for a person to state secrets. The criterion low degree of reliability
and trustworthiness has been included in the list of grounds to deny a person clearance to secrets.
Period of a persons inspection has been extended to 3 months, with the possibility of prolonging the
term with additional 3 months.
In case of denying clearance to state secrets, state officials no longer have the obligation to present a
written response with due reasons. Removal of this obligation from the law means that the official will
have the right to respond to a citizens complaint without presenting reasons, by simply notifying them
of the final decision.
Assessment of Transparency International Georgia:
According to the explanatory note, the draft law aimed to regulate public relations related to state secrets
and align them with contemporary international standards. By assessment of Transparency International
Georgia, in spite of the envisaged objective, the law contains a number of provisions that contradict
international and European standards. Compared to currently effective law, it actually worsens the
situation in this regard.
Normative acts have arisen general public interest and their accessibility is directly related to protection of
human rights and democratic governance. Vague criteria of reliability and creditworthiness, threefold increase
of inspection term and releasing officials from the liability to submit duly argumentative written response in
case of denial aggravate accessibility of information, increase risk of further and unjustified closure
of already shut system and also increases probability of subjective settlement of the issue by law
enforcement authorities.
4.3.5 REDUCING THE SCOPE OF JURY TRIAL
On February 19 of 2015, the Parliament of Georgia supported the legislative proposal initiated by members
of the Parliament Manana Kobakhidze, David Saganelidze, Gedevan Popkhadze, Zviad Kvachantiradze and
Paata Kiknavelidze on moving amendment to the Criminal Procedure Code of Georgia. According to the
amendment, paragraph 31 of article 330 of the Criminal Procedure Code will be removed. Consequently,
trials by jury will no longer consider criminal offences by officials, holding or having held positions envisaged
by article 2 of the Law of Georgia on the Conflict of Interests and Corruption in Public Service as well as
cases of those persons, who represent accomplices of such officials in a crime.
Assessment of Transparency International Georgia
Together with other non-governmental organizations, Transparency International Georgia negatively assessed
reduction of the scope of the jury trial.
Introduction of the jury trial practice was assessed as a positive development by partner countries and
organizations of Georgia. However, the government failed to take sufficient measures to ensure effective
implementation of the given institute. Full-scale launch of jury trial should have taken place by October 1 of
2014. The Parliament of Georgia adopted the law on September 18, 2014 and postponed full launch of the
jury system until October 1, 2016.
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ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Reducing scope of the jury trial needs to be duly justified. The issue of scope reduction should not
be guided by political motives or legal preferences, it should not depend on likes and dislikes of
members of the Parliament. Talks on the mandate of jury trial should be brought within the framework of
systemic discussions.
4.3.6 CRIMINALIZING INCITEMENT OF HATRED
On June 12 of 2015, the Parliament passed an amendment to the Criminal Code of Georgia. According to
the given amendment public calls made verbally, in writing or through other forms for inciting hatred
and causing discord between racial, religious, national, ethnic, social, political, linguistic and/or other
groups and public calls that pose obvious, direct and substantial danger of violent acts, shall be
punishable by a fine from two hundred to four hundred GEL or community service. The same action,
followed by severe damage to human health, death or other serious consequences is punishable by
imprisonment from two to five years. For the action envisaged under the given article, legal entity
shall be punished by liquidation or deprivation of license and fine.
Assessment of Transparency International Georgia:
The given draft law was negatively assessed by the civil sector right upon its initiation. During the committee
discussions, initiator of the draft law took into account remarks made by non-governmental organizations
and modified wording of the provision to include in the definition of punishable activity obvious, direct and
substantial danger of violent acts. Even though consideration of the given remark has substantially improved
legislative amendments, we believe that the governments efforts directed at regulating the freedom of
expression should be regarded as a step backwards in terms of democracy and development.
4.3.7 AMENDMENTS TO RULES ON WITNESS INTERROGATION
On December 18 of 2015, the Parliament approved the amendments to the Criminal Procedure Code of
Georgia, which established new rules for witness interrogation.
Amendment which envisaged interrogation of witnesses only at the court proceeding was moved in 2009;
however, from the date of adoption, its enactment has been postponed 7 times.
In 2015 a working group was set up under the Legal Affairs Committee, in which along with the parliament
members and government officials, non-governmental sector representatives were involved. The working
group failed to work out the draft law. Finally, the legislative body voted in favor of the draft law developed by
the Ministry of Justice and initiated by the government.
The draft law envisages the possibility of compulsory questioning of a witness by a magistrate judge in case of
witness refusal to participate in voluntary interrogation. The given authority is granted only to the prosecution
and to secure questioning by the magistrate judge, he has to prove that a person holds information relevant
to the circumstances of the case. The Judge satisfies motion of the prosecution if appropriate standard of
evidence is present there is solid reason to believe that the person actually holds essential information
related to the criminal case.
The draft law also clarifies the above-mentioned standard of evidence; it means there are facts and/or information evident allowing an unbiased person to conclude that a person may be holding information required
for investigating circumstances of the criminal case.

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Assessment of Transparency international Georgia

Transparency International Georgia was actively involved in the committee hearings. Within the framework of
Coalition for Independent and Transparent Judiciary, we assessed the legislative amendments. By opinion
of the Coalition, amendments proposed by the Ministry of Justice result in introduction of elements
that are fundamentally incompatible with the effective judiciary system of Georgia, lead to deterioration

SPRING, FALL AND EXTRAORDINARY SESSIONS

of legal state of the defense and jeopardize overall equality of the parties. We believe that enactment
of the proposed rule will trigger a number of serious legal and practical problems in future.

4.4 REFORM OF LAW ENFORCEMENT SYSTEM

4.4.1 REFORM OF THE MINISTRY OF INTERNAL AFFAIRS
On July 8 of 2015, the Parliament passed at the third hearing the government-initiated draft law on State
Security Service and amendments to its accompanying draft laws. Legislative amendments aimed to separate state security service from the Ministry of Internal Affairs and pass reform of the given Ministry. By the
new Law on State Security Service a new structure Security Service has been established, which
assumes the functions of analysis, law enforcement, use of force, prevention and investigation.
Assessment of Transparency International Georgia
Transparency International Georgia was actively involved in ongoing committee discussions and public meetings on the Interior Ministry reform. Only small portion of our remarks were considered; however, the remarks
that concerned the most fundamental issues and critical areas were left neglected.
Transparency International Georgia welcomes separation of the State Security Service from the Interior Ministry as concentration of excessive power in the hands of a single agency always leads to the risk of power
abuse. Nevertheless, we think that the Law on State Security Service clearly demonstrates the way
a good idea can be implemented in the most ineffective way - by splitting one powerful Ministry we
got two separate structures with excessive authority, duplicated functions and risk of power abuse.
Such accommodation of the issue can hardly be assessed as a step forward towards democracy and
human rights.
We have posted on our website a comprehensive assessment of the Interior Ministry reform. Now, we will
draw attention to a few principal issues:
Security Service with excessive power, low standards of transparency and clandestine methods of data
collection poses a serious danger in terms of power abuse and human rights violation.
There are not effective tools in place for controlling activities of the Security Service. Consequently, we
have come by with a closed agency possessing extensive personal data whereas no external mechanisms of control are available.
State Security Service retains authority to have a permanent representative in state institutions as well
as in private structures. It was not sufficient to just reform the institution of the so-called ODRs; it was
vital to decline the given malpractice altogether.
Technical equipment that is used for purposes of wiretapping, still remains in the hands of the agency
with the high risk of power abuse, as the given authority is driven by investigative, preventive and law-enforcement objectives and hence has professional interest in collecting as much information as possible.
4.4.2 PROSECUTION REFORM
On September 18 of 2015, the Parliament of Georgia passed the government-initiated amendments to the
Law on the Prosecution. The amendments aimed to increase independence of the Prosecutors Office through
establishing the Prosecutorial Council and Conference of Prosecutors; explicit definition of the Prosecutions
accountability; legislative regulation of the criteria for appointment/dismissal of the Chief Prosecutor.
Following the moved amendments, a new body Prosecutorial Council has been established, whose primary functions include participation in appointment and dismissal of the Chief Prosecutor. The Prosecutorial
Council consists of 15 members with Minister of Justice being Chairman of the Council and the Parliament
of Georgia selecting its four members.
The Coalition for an Independent and Transparent Judiciary has repeatedly expressed its position on the given
process and published a number of reports on the draft law. The Coalition asserted that introduction of a new
rule of selection/appointment and dismissal of the Chief Prosecutor didnt suffice to reform the prosecution

23

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

system and therefore, the ongoing process could not be assessed as such.
Assessment of Transparency International Georgia
Establishment of the Prosecutorial Council was a positive step; however, existence of an effective and
independent Prosecutorial Council largely depended on the rule of its staffing.
Rule of staffing the Prosecutorial Council as well as qualification/professional criteria for the chief prosecutorial candidate, rule of appointment and dismissal fail to provide for selecting the best candidate to the
position of the Chief Prosecutor based on professional skills and do not ensure non-political nature
of the selection process.
Transparency International Georgia has the following key concerns with respect to the law:
As the Parliament finally approves the Chief Prosecutor by simple majority of votes, support of just the
ruling political party is sufficient. The given fact is not counterbalanced either by the rule of candidate
selection in the Council, as the draft law allows for the possibility to select those candidates in the Prosecutorial Council, who are acceptable for the ruling party.
Minister of Justice still remains the Head of the Prosecutorial Council, retains the power to unilaterally
nominate its candidates and besides, holds other significant powers with respect to functioning of the
Prosecutorial Council.
The draft law does not establish clear qualification/professional criteria to be met by candidates to the
Chief Prosecutor; as a result, the Prosecutorial Council remains restricted by the decision made by the
Minister of Justice at his/her sole discretion.
The revised draft law still contains systemic problems, such as exceedingly politicized processes for
dismissing the Chief Prosecutor, flawed mechanisms of the procedure for selection and temporary
appointment of acting Chief Prosecutor, vague nature of his proceedings, lack of legal safeguards for
the Chief Prosecutor and exclusion of the court from the entire process. Disciplinary procedures of the
Chief Prosecutor are rather obscure as well.
Opinion Poll Results
Transparency International Georgia got interested whether citizens of Georgia were well informed about the
prosecution reform.
Diagram 3. Public opinion poll results about the prosecution reform
HAVE YOU HEARD ABOUT THE PROSECUTION REFORM, WHICH ALONG WITH OTHER
AMENDMENTS, CHANGED THE RULE OF APPOINTING AND DISMISSING THE
CHIEF PROSECUTOR?
100
90
80
70

70
60
50
40
30

28

20
10

0
Yes

24

No

Dont know/refuse to answer

SPRING, FALL AND EXTRAORDINARY SESSIONS

Results of the public opinion poll on laws adopted by the Parliament

Congruent to the Constitution of Georgia, the people are the source of power. The Parliament is the supreme
representative body of the country. Thus, it is particularly interesting to find out what people think of their
representatives and on activities of the Institute, which defines key directions in the countrys domestic and
foreign policy. Although disposition of the population is best reflected through elections, attitude of citizens
towards institutions as well as specific politicians tend to change from one elections to another. Accordingly,
we think that knowing what people think on the legislative body and adopted laws will be beneficial for Members of the Parliament and will ultimately bear a positive effect on their activities.

Diagram 4. Public opinion poll results on the draft laws adopted by the Parliament
DO YOU AGREE OR DISAGREE WITH THE FOLLOWING STATEMENT: THE PARLIAMENT ADOPTS
LAWS BENEFICIAL FOR GEORGIA BASED ON THE TYPE OF SETTLEMENT

Fully agree

Agree

Partially agree, partially disagree

Disagree

Fully disagree

Dont know/refuse to answer

100
90
80
70
60
50

46
41

39

40
30
22

19

20

15

17
9

10
0

22

19

Capital

Urban settlement

Rural settlement

25

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

CHAPTER

PARLIAMENTARY CONTROL

Congruent to article 48 of the Constitution of Georgia, the Parliament is the supreme representative body.
Along with performing legislative activities and defining key directions in the countrys domestic and foreign
policies, its primary functions include oversight of government activities.
According to the Georgian legislation, there are several mechanisms available for parliamentary control:
Hearing of reports of the bodies accountable to the Parliament
Invitation of accountable bodies to committee meetings
MP questions
Governmental hour
Establishment of the investigation commission
Control over implementation of normative acts
Confidence Group activities
Transparency International Georgia studied practical application of each control mechanism by the Parliament in 2015. The Parliament had not exercised several options of control mechanism; for example,
governmental hour had not taken place.
Despite 5 requests submitted by the minority, temporary investigation commission had not been
established.
Control over governmental acts is ineffective and needs to be improved.
In some cases, Members of Parliament inappropriately employ mechanism of MP questions and get interested in information about a particular person or institution. Practice of responding to MP questions revealed
that in most cases rules and procedures of responding are violated.
MP question by a group of ten members of the Parliament or a Parliamentary Faction has not been
exercised during the reporting period.

5.1 HEARING OF REPORTS OF THE BODIES ACCOUNTABLE TO THE PARLIAMENT

Congruent to article 48 of the Constitution of Georgia, within the framework determined by the Constitution
the Parliament exercises control over the activity of the government. Congruent to article 3 of the Rules of
Procedure of the Parliament, it is the prerogative of the Parliament to exercise control over officials and bodies
accountable and responsible to the Parliament. The Constitution of Georgia and Rules of Procedure of the
Parliament determine when and in what manner reports of accountable bodies will be considered; in line with
the given rules, during the reporting period the Parliament of Georgia:

at the plenary session on September 18, heard as a note 2014 activity report of the National Com

26

munications Commission and information on its primary activities for 2015-2017

at the plenary session on June 27, heard as a note 2014 activity report of the Statistics National Office
On May 28, approved 2014 activity report of LEPL Legal Aid Service of Georgia
At the plenary session of July 3, heard the governments report on implementation of 2014 state budget
On May 1, heard and positively assessed 2014 report by the Personal Data Protection Inspector on
activities of the Office of the Inspector and Protection of Personal Data
On July 3, heard 2014 report of Public Defender on protection of human rights and freedoms.

SPRING, FALL AND EXTRAORDINARY SESSIONS

5.1.1 HEARING OF REPORTS BY THE STATE AUDIT OFFICE AND THE NATIONAL BANK OF GEORGIA
At the plenary session, the Parliament of Georgia has not heard activity reports for 2015 by the State Audit
Office and the National Bank of Georgia. Neither did the Parliament hear the given reports in 2014. Congruent
to article 3 of the Rules of Procedure of the Parliament, it is the prerogative of the parliament to exercise
parliamentary control over officials and bodies accountable to it. Congruent to articles 227 and 239
of the Rules of Procedure, the Parliament controls activities of the State Audit Office as envisaged by the
Constitution of Georgia and other legislative and sub legislative acts. Once a year, no later than June 1 of the
following year the State Audit Office shall present its activity report. After reviewing the report, the Parliament
shall adopt relevant resolution. According to article 239 of the Rules of Procedure, the National Bank which is
accountable to the Parliament and represents a banker and fiscal agent of the Georgian government, as well
as the Financial Supervision Agency of Georgia shall submit their annual activity reports to the Parliament
each year, no later than 4 months after the end of the previous fiscal year.
Thus, despite the statutory requirement to present an activity report, the State Audit office has not performed
its obligation.
In 2015, the Parliament didnt review at its plenary session an activity report of the National Bank. The
given issue was brought to the fore and particularly emphasized due to depreciation of the national currency,
which substantially aggravated economic situation in the country; representatives of the government kept
on expressing their complaints on activities of the National Bank. President of the National Bank repeatedly
called for considering the report at the plenary session.
It is not quite clear on what grounds the Parliament neglects statutory requirements. Congruent to norms of
the Rules of Procedure, it is essential that the Parliament hears reports presented by accountable bodies.
5.1.2 HEARING OF REPORTS BY COMMITTEES AND INVITING THE
BODIES ACCOUNTABLE TO THE PARLIAMENT TO THE COMMITTEE
Transparency International Georgia decided to determine which institutions had presented reports at committee
hearings, how many sessions were devoted to discussion of the issue and heads of how many accountable
bodies were invited at the committee sessions.
Congruent to article 45 of the Rules of Procedure of the Parliament, a member of the government, an official
elected by the Parliament as well as an official whose appointment has been approved by the Parliament, shall
be entitled and upon request shall be obliged to attend committee meetings, answer questions raised
during sessions and submit activity reports. Immediately upon a respective request, committee will be
obliged to hear reports of such officials.
The information submitted by the committees on the one hand does not indicate the agencies reports of
which were considered and on the other who specifically was representing a particular agency. The information presented by the committees does not specify whether representatives of the government and other
structures were invited for purposes of hearing reports or for considering other vital and problematic issues
by committee initiative.
While studying the issue, two key problems were identified:
Compared to practices of developed and democratic countries, parliamentary committees do not
employ the given possibility envisaged by the law at proper frequency and with due effectiveness.
Members of the Government do not take accountability towards parliamentary committees with
due responsibility; in most cases different Ministries are represented not by Ministers themselves,
but rather by Deputy Ministers and Heads of Ministrys structural units.

27

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Below is given information on hearing of reports of accountable bodies by different committees:

1. Agrarian Issues Committee dedicated 8 sessions to hearing of reports by accountable bodies; the
sessions were attended by the government officials and heads of the agencies, in particular: activity
report of the Ministry of Agriculture and an action plan on development - the strategy was presented by
the Minister of Agriculture Otar Danelia; information about the measures taken to assist small farmers
during Spring preparatory works was introduced by the First Deputy of the Minister of Agriculture, Nodar
Kereselidze.
2. Human Rights Committee dedicated 22 sessions to hearing of reports by accountable bodies; the
sessions were attended by: the Chairman of the Supreme Court - Nino Gvenetadze; Minister of Justice
Tea Tsulukiani; Deputy Minister Alexander Baramidze; Minister of Internal Affairs Giorgi Mghebrishvili
and his Deputy; Minister of Corrections and Probation and his Deputy; Minister of Internally Displaced
Persons from the Occupied Territories, Accommodation and Refugees; State Minister for Reconciliation
and Civic Equality and his Deputy; Minister of Defense Tinatin Khidasheli; Chief Prosecutor Irakli Shotadze
and his Deputy; Deputy Minister of Labour, Health and Social Affairs; Two Deputy Ministers of Education
and Science; Deputy Minister of Finance; Deputy Minister of Foreign Affairs; Deputy Minister of Culture
and Monument Protection; Deputy Minister of Environment Protection and Natural Resources; Deputy
Minister of Economy and Sustainable Development; the Public Defender of Georgia, Director of Legal
Aid Service, the Personal Data Protection Inspector; members of the High Council of Justice; Assistant
to the Prime Minister in Human Rights and Gender Equality Issues; Head of the State Security Service;
Deputy Auditor General of State Audit Office; Chairman of the National Communications Commission
of Georgia; Chairman of the Board of Trustees of the Georgian Public Broadcaster;
3. Over the reporting period, Education, Science and Culture Committee dedicated 7 sessions to
hearing of reports by the bodies accountable to the government and the Parliament of Georgia. The
sessions were attended by the Deputy Minister of Finance George Kakauridze, Minister of Culture and
Monument Protection Mikheil Giorgadze, Deputy Minister of Culture and Monument Protection Giorgi
Bakradze, Minister of Education and Science Tamar Sanikidze, Deputy Minister Ketevan Natriashvili and
other government officials. Apart from hearing the reports by accountable bodies, the Committee has
not invited government officials for any other occasion.
4. Environmental Protection and Natural Resources Committee heard the reports for 2014-2014 by the
following bodies accountable to the Parliament: LEPL National Forestry Agency, Policy Department and
LEPL Basic Sapling Forestry; reports by Ministry of Environmental Protection and Natural Resources,
LEPL Agency of Protected Areas. Apart from hearing the reports by accountable bodies, the Committee
has not invited government officials for any other occasion.

28

5. Sector Economy and Economic Policy Committee dedicated 12 sessions to hearing of reports by
the bodies accountable to the Parliament - 6 sessions were devoted to hearing of governmental reports,
namely: 1 session on GEL exchange rate (the session was attended by the Minister of Finance and
the Minister of Economy and Sustainable Development, President of the National Bank of Georgia); 1
session on the ongoing vintage in Kakheti (attended by the Minister of Agriculture); 2 sessions on
declaring vote of confidence to the governmental program and composition of the government (attended
by Minister of Economy and Sustainable Development, Minister of Finance, Minister of Regional Development and Infrastructure and Minister of Agriculture); 2 sessions state budget implementation (attended
by Deputy Ministers of Finance, Economy and Sustainable Development and Energy); sessions were
attended as well by heads of legal entities of public law subordinated to the Ministry of Economy and
Sustainable Development, head of the agency under the Ministry of Energy and and 3 legal entities
of public law. 2 sessions reports by regulatory authorities, namely: 1 session report by the National
Energy and Water Supply Regulatory Commission (the meeting was attended by the Chairman and its
members); 1 - report by the National Communications Commission (the meeting was attended by the
Chairman of the Commission and its members). 1 session was dedicated to hearing of report by the
Public Broadcaster (attended by the Chairman of the Board of Trustees and its members); 1 session
hearing of activity report by National Statistics Office of Georgia (attended by the Executive Director
and Deputies); 1 session - on switch to digital broadcasting (attended by the Chairman of the Digital
Broadcasting Agency); 1 session activity report by the Innovation and Technology Agency (attended
by the Chairman and Deputy Chairman of the Agency);

SPRING, FALL AND EXTRAORDINARY SESSIONS

During the reporting period, Sector Economy and Economic Policy Committee called 6 government
officials. All six persons attended the sessions.
6. Diaspora and Caucasus Issues Committee dedicated 14 sessions to hearing of reports by accountable
bodies. The sessions were attended by different Ministers as well as Deputy Ministers. However, the
Committee does not indicate specific agencies presenting reports and specific officials representing them.
According to the committee information, the following bodies have repeatedly participated in committee
sessions and presented their reports: Ministers and Deputy Ministers of Foreign Affairs, Minister and
Deputy Minister of Finance, State Minister and Deputy Minister for Diaspora Issues, State Minister on
European and Euro-Atlantic Integration, First Deputy of the Minister for Reconciliation and Civic Equality,
Deputy Justice Minister, Deputy Minister of Labour, Health and Social Affairs, Deputy Minister of Economy and Sustainable Development, the Acting Chairman of Government of the Autonomous Republic
of Abkhazia, other members of the government (the committee does not name specific members of the
government) and First Deputy Public Defender of Georgia. The committee has not invited government
officials for any other occasion.
7. During the reporting period, Committee on European Integration heard a report presented by the Office
of the State Minister of Georgia on European and Euro-Atlantic Integration and Ministry of Foreign Affairs
on Atomic Energy Community of Georgia on the one hand and the European Union and the Europe on
the other, Association Agreement between their member states and implementation of 2015 national
action plan on the Association Agenda between Georgia and the European Union; in addition, the committee heard a report presented by Ministry of Economy and Sustainable Development on Deep and
Comprehensive Free Trade Area Agreement with the European Union (DCFTA); reports by the Office of
the State Minister on European and Euro-Atlantic Integration and Ministry of Foreign Affairs on progress
of the government program for Powerful, Democratic, United Georgia. The committee heard reports as
well on implementation of action plan with regard to visa liberalization, presented by representatives of
executive authorities involved in inter-agency working group; the committee reviewed 2016 national action
plan of the Association Agenda presented by the government. The committee dedicated 4 sessions to
consideration of the given issues. Apart from hearing reports, the committee has not invited government
officials for any other occasion.
8. Defense and Security Committee heard report of the Defense Minister twice.
9. Legal Issues Committee dedicated 7 sessions to hearing of the reports presented by the bodies
accountable to the government and the Parliament. Within one session, several reports were covered
which pertained to: 2014 activity report by LEPL Legal Aid Service, 2014 activity report by the Personal
Data Protection Inspector, 2014 report on implementation of state budget, 2014 report by the State Audit
Office, overview of 3-month performance of 2015 budget, 6-month report on 2015 budget, 2014 report
by the National Communication Commission and information on key work objectives of the Commission
for 2015-2017. Committee hearing (attended by Tea Tsulukiani, Minister of Internal Affairs Vakhtang
Gomelauri, Minister of Justice Giorgi Mgebrishvili) was dedicated to declaration of vote to the government
composition presented by the President and the updated government program presented by the Prime
Minister; declaration of confidence was attended by Tea Tsulukiani, Giorgi Mgebrishvili, Kakha Kakhishvili.
Apart from hearing reports, the committee has not invited government officials for any other occasion.
10. Regional Policy and Self-governance Committee dedicated 13 sessions and 12 working meetings
to hearing of the reports by the accountable bodies. The committee meetings were attended by 63 officials from accountable agencies, including 12 government members, 43 deputy ministers, and heads
of departments within the structure of the Ministry. Apart from hearing reports, the committee invited 12
government officials on other occasions; 10 officials attended committee meetings (in two cases, their
deputies attended with preliminary consent of the committee).
11. During the reporting period, Foreign Relations Committee heard a report on the activities carried out
by the Ministry of Foreign Affairs in several stages. The sessions were presented by five Deputy Minister
of Foreign Affairs with their respective curatorial departments (13 departments, one legal entity of public
law). During the reporting period, the Committee heard as well the updated government program For
Powerful, Democratic, United Georgia of the composition of the Government and the Prime Minister

29

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

presented by the President for getting vow of confidence. Committee hearings of the Minister of Foreign
Affairs Tamar Beruchashvili, State Minister on European and Euro-Atlantic Integration David Bakradze,
and Minister of Diaspora Issues Gela Dumbadze took place. The committee heard 3-month overview
on implementation of 2015 state budget, presented by the Ministry of Finance; it got familiar with the
report on 2014 state budget implementation, information on key macroeconomic projections and basic
directions of Ministries of Georgia; committee hearing was dedicated as well to consideration of activities
carried out by the Ministry of Foreign Affairs; First Deputy Minister of Foreign Affairs acted as a speaker.
Apart from hearing reports, the committee has not invited government officials for any other occasion.
12. In the process of declaring a vow of confidence to the government, the Procedural Issues and Rules
Committee heard reports presented by Heads of Ministries of Justice, Defense, Internal Affairs, Corrections and Probation and the Ministry of Internally Displaced Persons from the Occupied Territories,
Accommodation and Refugees; State Minister of Georgia for Reconciliation and Civic Equality. Apart
from hearing reports, the committee has not invited government officials for any other occasion.
13. Budget and Finance Committee dedicated 9 sessions to hearing of reports by accountable bodies.
The sessions were attended by representatives of the Ministry of Finance, the National Bank, and the
State Audit Office. However, the Committee does not indicate who specifically represented the given
agencies. Apart from hearing reports, the Budget and Finance Committee had called two members of
the government (the Committee does not specify the members), President of the National Bank and the
Auditor General.
14. Sports and Youth Issues Committee dedicated 7 sessions to hearing of reports by accountable bodies;
the sessions were attended by Ministers of Sport and Youth Affairs Levan Kipiani and Tariel Khechikashvili
as well as four Deputy Ministers. Apart from hearing reports, Sport and Youth Issues Committee had
twice called Minister of Sport and Youth Affairs (both times attended the meetings).
15. Healthcare and Social Issues Committee dedicated 12 sessions to hearing of reports by accountable
bodies. The Committee discussed the confidence for the government composition and state program,
in the framework of which the committee listened to the Minister of Labour, Health and Social Affairs of
Georgia David Sergeenko. During the reporting period, the committee listened to four legal entities of
public law. The Deputy Minister of Labour, Health and Social Affairs presented the report on the fulfillment
of the Prime Ministers program Strong, Democratic, United Georgia. During the reporting period, the
Minister of Labour, Health and Social Affairs presented information on future activities and the state
program for the elimination and treatment of Hepatitis C in Georgia. The committee listened to the report
on the fulfilment of the state budget, state audit office and general information on microeconomic trends.

5.2 MP QUESTIONS: VERBAL AND WRITTEN

MP questions represent one of the most effective mechanisms for exercising parliamentary control. Congruent
to the legislation, each member of the Parliament is entitled to apply with a question to the body accountable
to the Parliament, which in its turn is obliged to provide a response in the stipulated form and within the
determined timeframe. A group of ten MPs or a parliamentary faction is entitled to address with a question
any agency accountable to the Parliament, the Government, particular members of the government, who
are obliged to answer these questions at a sitting of the Parliament. The answer may become a matter of
discussion of the Parliament.26

30

26
Congruent to article 59 of the Constitution of Georgia, a member of the Parliament shall be entitled to apply with a question
to the bodies accountable to the Parliament, the Government, a member of the Government, heads of executive bodies of the
territorial units of any level, state institutions and to receive answers from them. A group of at least ten members of the Parliament
or a Parliamentary Faction shall be entitled to apply with a question to any body accountable to the Parliament, the Government, a
particular member of the Government the latter being obliged to answer the raised questions at a sitting of the Parliament.
Congruent to article 60 of the Constitution, A member of the Government, an official elected, appointed or approved by the Parliament, shall be entitled and in case of request shall be obliged to attend the sittings of the Parliament, its Committee or Commission, to answer the raised questions at a sitting and submit an account of an activity. At a request, such an official shall be heard by
the Parliament, Committee or Commission.

SPRING, FALL AND EXTRAORDINARY SESSIONS

Rules of Procedure of the Parliament outline mechanisms of parliamentary control and provide for legislative
regulation of MP questions. Congruent to article 221 of the Rules of Procedure, in case of application with
a question, each body and each official accountable to the Parliament shall be obliged to present a written
response to the Parliament within 15 days from submission of the question. In agreement with the author of
the question, the given period may be extended by additional 10 days. Congruent to the Rules of Procedure,
an official shall be entitled to refrain from answering a question only in case if the respective information
concerns state or military secrets. The answer shall be signed by the parties defined under the given article or
heads of respective agencies. Congruent to the Constitution and Rules of Procedure of Georgia, the answer
may become a matter of discussion of the Parliament.27
Questions put forward by members of the Parliament and respective responses represent information of the
public domain, though in practice they do not get published. On July 17 of 2015, the Parliament of Georgia
adopted the Open Parliament Georgia Action Plan 2015-2016. By recommendation of Transparency International Georgia, the obligation of the Parliament to proactively disclose statistics and publish all provided
responses to MP questions on the Parliaments website has been included among the other liabilities in
the action plan. Timeframe for implementation of the given obligation has been defined as the period from
September 2015 to September 2016.
During 2015, no verbal or written question had been raised by a group of ten members of the Parliament or a parliamentary faction.
From the total number:
The greatest number of questions came from Giorgi Gabashvili - 159
The greatest number of questions were addressed to Minister of Education and Science Tamar Sanikidze
19 question remain unresponded
Key areas of interest for MPs Bonuses of members of the government, deputy ministers; salary supplements, government expenditures.
In 2015, mechanism of MP questions was applied by 18 members of the Parliament, 361 questions were
submitted.

27
By the majority of its full composition, the Parliament is entitled to raise the issue of liability of specific government members
before the Prime Minister. Congruent to article 289 of the Rules of Procedure of Georgia, members of the government, government-elected officials as well as other officials involved in activities of the Parliament shall bear liability for violating the Rules of
Procedure. Liability of an official arises as well if he violates the determined procedure of answering MP questions, provides false
information or impedes members of the Parliament to exercise their rights granted under the Rules of Procedure and other legislative and sub-legislative acts of Georgia. In such cases, the Procedural Issues and Rules Committee will consider facts of violation
and submit the issue to the Parliamentary Bureau for offering further response; after that, the Parliament will be entitled to adopt a
resolution or decree on applying appropriate statutory measures towards the specific official in charge of violation.

31

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Diagram 5. Number of MP questions per deputy as of 2015

Ind. MPs

Free Democrats

Minority

Majority

Giorgi Gabashvili

159

Khatuna Gogorishvili

46

Giorgi Baramidze

36

Levan Tarkhnishvili

28

Zurab Japaridze

26

Irakli Chikovani

14

Irma Nadirashvili

12

Tariel Londaridze

12

Sergo Ratiani

Mikheil Machavariani

Zurab Tkemaladze

Giorgi Tsagareishvili

Giorgi Meladze

Giorgi Zhvania

Gia Zhorzholiani

Giorgi Vashadze

Giorgi Volski

Kakhaber Okriashvili

1
0

20

40

60

80

100

120

140

160

180

Given the current practice of MP questions, it can be stated that executive authorities rarely pose
questions on crucial issues related to public policy implementation. In some cases, from the content
of a question, it is hard to judge whether parliamentary oversight is an ultimate objective; questions
may refer more to specific fields of business rather than effective application of executive power.
While assessing existing data it should be noted that:
Members of the Parliament rarely get interested in implementation of the government program by the
executive authorities or other important issues in the field of public policy. In 2015, members of the Parliament have raised no questions with regard to cooperation and integration of Georgia with European
and Euro-Atlantic structures.
Through MP questions, members of the Parliament get information about permits on specific constructions, imports related to particular business types. In most cases, MP questions do not cover principal
issues with regard to effective implementation of executive power.
Answers by members of the government mostly are not comprehensive and they are signed not by
ministers themselves but rather by other employees of the ministry; for instance, it can be a person in
charge of issuing public information or head of some department. In some cases, if author of the question
is a member of the minority, response of the Minister is addressed not to the author of the question, but
rather to the Chairman of the Procedural Issues Committee
statutory mechanisms envisaging liability of government members for violating defined procedures of
answering MP questions, do not work in practice.
32

SPRING, FALL AND EXTRAORDINARY SESSIONS

Inefficiency of parliamentary oversight in Georgia is further demonstrated by attitude of the Government members towards MP questions.
Congruent to Article 221 of the Rules of Procedure, an answer shall be signed only by the addressee of a
question, that is, head of the body accountable to the Parliament. MP question is a form of executing parliamentary control and it is not about disclosure of public information; however, provided answers are frequently
signed not by Ministers themselves, but rather by Deputy Ministers. Answers sent by Ministries mostly tend
to be incomplete, contain highly general information or reference that relevant information is available on the
website of the Ministry. However, posting of information on the web page does not release a person from the
obligation of disclosing information. In some cases, members of the government send their responses not to
the author, but rather to the Chairman of the Procedural Issues and Rules Committee Giorgi Kakhiani. Such
facts mostly occur when questions come from members of the parliamentary minority. In case an addressee
of a question does not provide an answer within the timeframe defined by the law, Chairman of the Procedural
Committee re-forwards the question, urging the addressee to provide an answer. Some Ministers condescend
to answer questions only after such reminder, still addressing their responses to the Chairman of the Procedural Committee. Statutory mechanisms do not work effectively. For example, inappropriate handling of MP
questions by members of the government has never become a matter of discussion at plenary sessions of
the Parliament.28

5.3 GOVERNMENT HOUR IN PARLIAMENT

Congruent to paragraph 2, article 221 of the Rules of Procedure of the Georgian Parliament, a group of at
least ten members of the Parliament or a Parliamentary Faction shall be entitled to apply with a question
to any body accountable to the Parliament, the Government of Georgia, members of the Government. The
latter shall be obliged to answer the raised questions at a plenary sitting of the Parliament. Questions shall
be answered at plenary sessions on the last Friday of each month, during the Government Hour. A questions
can be oral or written. An answer to a particular question shall be presented at the parliamentary session.
First paragraph of article 222 stipulates that a verbal question may be posed at a plenary session of the
Parliament, but no later than 14 days before the Government Hour. A written question may be submitted no
later than 10 days before the Government Hour. Congruent to article 126, the Government Hour takes place
at the plenary session on the last Friday of each month, from 16:00 to 19:00.
Even though there are legislative regulations in place, they are not complied with; namely, the
Government Hour hasnt taken place in 2015, which in its turn enfeebles the effectiveness of the
parliamentary oversight.

5.4 TEMPORARY INVESTIGATION COMMISSIONS

For the reporting period, the Parliament has considered initiatives on establishing five investigation commissions; four of them have been declined as being inappropriate whereas a presentation letter has been
prepared for one.
1. Feasibility of establishing interim commission to investigate high profile murders of Iuri Vazagashvili,
Barbare Rapaliantsi, Shalva Tatukhashvili, Erasti Kitsmarishvili and Archil Maisuradze.
Initiated by: (factions from the parliamentary minority: United National Movement, National Movement Regions and National Movement Majoritarians).
An interim commission should have been established to investigate high profile murders of Iuri Vazagashvili,
Barbare Rapaliantsi, Shalva Tatukhashvili, Erasti Kitsmarishvili and Archil Maisuradze. However, the initiative
was declined as being inappropriate.

Transparency International Georgia, importance of parliamentary oversight (MP questions), December 7, 2015 2015 http://
goo.gl/eqm0ED
28

33

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

2. Establishment of an interim parliamentary investigation commission to study developments around

Sakdrisi-Kachagiani gold mine
Initiated by: faction Free Democrats
The commission should have studied activities carried out by officials of the Ministry of Culture and Monument
Protection and the National Agency for Cultural Heritage Preservation with regard to Sakdrisi-Kachagiani
gold mine (including lifting up status of cultural heritage monument from Sakdrisi Kachagiani gold mine
and works performed by RMG company on the site). The given commission had not been established.
3. Feasibility of setting up an interim parliamentary investigation commission to study developments
around Sakdrisi-Kachagiani gold mine
Initiated by: factions from the parliamentary minority: United National Movement, National Movement
Region and National Movement Majoritarians.
The commission should have concentrated on investigating the facts with regard to lifting up status of cultural
heritage monument from Sakdrisi Kachagiani gold mine and works performed by RMG company on the
site. Establishment of the commission was deemed inappropriate.
4. Feasibility of establishing interim commission to investigate murders of Barbare Rapaliantsi,
Shalva Tatukhashvili and Erosi Kitsmarishvili
Initiated by: factions from the parliamentary minority: United National Movement, National Movement
Regions and National Movement Majoritarians.
The commission should have concentrated on investigating facts on the murders of Barbare Rapaliantsi, Erosi
Kitsmarishvili and Shalva Tatukhashvili; a respective presentation letter was prepared.
5. Feasibility of setting up an interim parliamentary investigation commission to study cases of
systemic corruption in the country
Factions from the parliamentary minority: United National Movement, National Movement Regions and
National Movement Majoritarians.
The commission should have concentrated on investigation of corruption schemes: Georgia lost 1 billion
GEL investment in Batumi port, Sakdrisi-Kachagiani case, Produce in Georgia, cutting of unique timber for
personal interests, use of three Super Puma helicopters by Aviaservis, project Panorama, road building
and laying of road surface, corruption in Ministry of Internally Displaced Persons from Occupied Territories,
Accommodation and Refugees, corruption in the field of drinking water supply, corruption in Tbilisi City Hall
and its structures, under the process of rehabilitating streets in Tbilisi, rehabilitation of Doesi Street, Gakhokidze Street, under 2015 Tbilisi Youth Festival, Black Spiderman and Pink Bear, corruption in Senaki
Municipality, Gori Municipality, Vani Municipality, corruption under the Rural Support Program.
Establishment of the given commission was deemed inappropriate.

34

SPRING, FALL AND EXTRAORDINARY SESSIONS

5.5 EXECUTION OF CONTROL BY THE PARLIAMENT OVER IMPLEMENTATION

OF GOVERNMENTAL ACTS AND THE BUDGET
Within its competence, a committee exercises control over compliance with the Georgian legislation of normative acts issued by a ministry, a minister and heads of other Executive Authorities under its superintendence,
checks implementation status of normative acts, studies and analyzes bottlenecks detected in the course of
their validity, works out recommendations and forwards them to concerned authorities.29
It is a prerogative of the Parliament of Georgia to adopt law on state budget and exercise control over its further implementation. In addition, through its Budget and Finance Committee, the Parliament monitors overall
and consistent performance of the state budget. As for other committees, as a rule they are in charge of
controlling budget fulfillment by the specific fields within the scope of their supervision.30 Over a budget year,
parliamentary committees study implementation of the state budget on a quarterly basis. They are entitled to
request and retrieve additional information from respective state authorities on state budget implementation.
Budget and Finance Committee takes charge of organizing committee meetings. If needed, outcomes of
such meetings may be reported to the Parliament and even become subjects for parliamentary discussions.
With respect to the given area, Transparency International Georgia got interested in the way committees
manage to carry out their statutory duties and assigned authorities.
1. Agrarian Issues Committee has presented no information at the plenary session with regard to execution of normative acts within its competence. According to the provided information, the committee exercises
oversight of obligations through transitional regulations. During the reporting period, the reports of the Ministry
of Agriculture and the legal entities of public law accountable to it were discussed, as well as the fulfillment
of tasks as defined by the transitional regulations. 3 sessions were dedicated for these issues.
For purposes of controlling budget implementation, the committee has held 6 sessions. It has produced a
conclusive report on 2014 budget implementation and fulfillment progress of 2015 budget.
2. As Human Rights and Civil Integration Committee reported, it has explored and monitored implementation of recommendations adopted by the Parliament. To this effect, the committee holds regular meetings and
prepares wrap-up reports at the end of each month. The committee, as well as the working groups created
by the committee, conducted control of normative acts.
For controlling budget implementation, the committee has held 6 sessions.
3. As Education, Culture and Science Committee reported, it exercises quarterly control over implementation
of tasks envisaged by transitional provisions of laws adopted by the Parliament. To this end, the committee
has addressed Ministries of Education and Culture and retrieved required information on issued/amended
tasks and sub-legislative normative acts envisaged by transitional provisions of laws adopted over the reporting period. According to the Committee, as of today all tasks have been fulfilled and all sub-legislative acts
have been issued. The Committee has prepared a relevant report on parliamentary control over the budget.
4. Environmental Protection and Natural Resources Committee hasnt provided any information with
regard to execution of normative acts within its competence. It has held 5 sessions on budget implementation
(positively assessed). With respect to supervising execution of normative acts, the Committee has provided
no materials.

29
30

Articles 236 and 237 of the Rules of Procedure of the Parliament

Article 189 of the Rules of Procedure of the Parliament

35

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

5. Sector Economy and Economic Policy Committee has held 3 sessions on execution of normative acts,
one of which pertained to implementation of Association Agreement between Georgia and the European
Union; 1 session, switch to digital broadcasting; 1 - session, food safety. The committee has reported three
times to the Parliamentary Bureau and once at a plenary session on execution of normative acts within its
competence. With a view to controlling budget implementation, two meetings have been held: at the 1st
meeting, report on 2014 state budget implementation was considered, whereas at the 2nd - 6-month budget
report was covered.
6. According to Diaspora and Caucasus Issues Committee during the sessions, which were attended
by representatives of the bodies accountable to the government and the Parliament, the committee issued
relevant recommendations, proposals and suggestions. However, the committee does not specify how many
of its sessions were dedicated to the given issue, how many members of the government were invited or
what other measures were applied for exercising parliamentary oversight.
Control over budget implementation: with a view to exercising control over the budget implementation, the
committee held 2 sessions; it positively assessed the report on budget implementation and issued relevant
recommendations.
7. Committee on European Integration has provided no information with respect to controlling governmental acts.
To exercise control over the budget implementation, the committee has held 4 sessions.
8. According to Defense and Security Committee, the committee controls implementation of tasks envisaged by the transitional provisions of laws and submits respective information to the Procedural Issues
and Rules Committee. The committee has developed recommendations on acts developed by heads of the
agencies within its competence. Though, the committee does not specify how many sessions it dedicated to
controlling implementation of the normative acts; neither does it indicate whether it has applied some other
measures in this regard.
To exercise control over the budget implementation, the committee has held 3 sessions. The committee
positively assessed the reports on budget implementation, presented by the agencies within its competence.
9. For exercising the oversight envisaged under the Rules of Procedure, the Legal Issues Committee
retrieved information from respective agencies within its competence (Ministry of Internal Affairs, Ministry of
Justice, Ministry of Corrections) about implementation of tasks envisaged by the transitional provisions of
adopted law. At the plenary session, the committee presented an annual report on its performance, which
encompassed information on implementation of the normative acts in the field under its superintendence.
For purposes of the budget control, 3 sessions were held.
10. According to Regional Policy and Self-governance Committee, it holds meetings to discuss current
activities carried out for purposes of law implementation. To this end, a coordinated action plan has been
developed jointly with the government. Moreover, as indicated by the committee, the Ministry of Regional
Development and Infrastructure provided 6 types of information on the fulfillment of the general articles
and transitional regulation of the Organic Code of Georgia on Local Self-Government, as well as Law on
Development of Mountainous Regions. On these issues the committee held three sessions, which were
held by the Deputy Minister Tengiz Shergelashvili. Moreover, as the committee indicates, on the basis of
requested information they analyzed information on the status of legislative acts and real problems related
to the implementation of law. According to the information provided by the Parliament, the articles and norms
to be fulfilled by the responsible subjects by 1 January 2016 according to the Law on the Development of
Mountainous Regions were implemented.
In order to control the implementation of the budget, the committee has held 7 meetings.

36

SPRING, FALL AND EXTRAORDINARY SESSIONS

11. For exercising control over the budget implementation, Foreign Relations Committee dedicated 2 sessions to hearing of the respective report. Furthermore, in the process of considering a draft budget several
proposals were produced, which were later reflected in the draft budget of the following year.
12. According to the bylaws of the Procedural Issues and Rules Committee, it has exercised control over
implementation of tasks envisaged by particular transitional provisions, resolutions of the Parliament and
the Parliamentary Bureau; to this end, it has cooperated with the parliamentary committees and other structures. As the committee pointed out, in the beginning of each month it used to post updated information on
implementation of resolutions; as a result, parliamentary agencies and structures of the Executive Authorities
were provided with the information about the tasks already carried out and still pending to be performed. The
committee points out that applied measures and implemented recommendations have positively affected
number of tasks implemented within legally defined timeframes. The Procedural Issues Committee has not
held a session for purposes of controlling the budget implementation.31
13. Together with the relevant accountable bodies, the Budget and Finance Committee exercised control
over implementation of 10 normative acts. In addition, the committee reported twice at the plenary sessions
on implementation of normative acts within its competence. For purposes of controlling the budget implementation, the committee held 4 sessions. The committee supported consideration of 2014 state budget
implementation report at the plenary sitting of the Parliament.
14. For purposes of controlling implementation of normative acts, the Sports and Youth Issues Committee
heard reports presented by the Ministry of Sports and Youth Affairs and its subordinate entities (LEPLs).
To control implementation of the budget, the Sports and Youth Issues Committee held 3 sessions.
15. According to Healthcare and Social Issues Committee, for purposes of controlling implementation of
normative acts it retrieved information from concerned agencies within its competence.
Review and consideration of the given information took place in the format of science-advisory boards; afterwards, recommendations were developed at the committee meetings. However, the information provided
by the committee does not specify how many sessions were held to this end. After issuing the given recommendations, the committee received feedback on their follow-up implementation.
For purposes of controlling budget implementation, the committee held 3 sessions. While reviewing the draft
budget, the committee came up with two remarks, both of which were accounted for.

31
Congruent to article 189 of the Rules of Procedure of Georgia, committees exercise control over the budget implementation by
the fields within their superintendence.

37

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

CHAPTER

INFORMATION ON THE MEMBERS OF

PARLIAMENT (EDUCATION, AGE, PROFESSION)

Under Article 49 of the Constitution of Georgia, any person who is twenty-one years old and has the right to
vote may be elected as a member of parliament (MP). The term of office of an MP shall commence upon taking
the oath of office and shall cease immediately at the first meeting of the newly elected Parliament. There are no
educational qualifications and professional limitations established for the MPs.

6.1 AGE OF THE MEMBERS OF PARLIAMENT

The average age of the Members of Parliament of the convocation of 2012 is 51. The average age of the parliamentary majority of the MPs is 54, and the average age of the parliamentary minority of the MPs is 46.
In the reporting period the oldest MP is Ivane Kighuradze (parliamentary majority), who is 79 years old, and the
youngest MP is Mariam Sajaia (parliamentary minority), who is 24 years old.

6.2 EDUCATION AND SPECIALISATION OF THE MEMBERS OF PARLIAMENT

20 Members of the Parliament of Georgia have acquired education in two specialisations, while 5 MPs have
acquired education in more than two specialisations. One MP is an academician, 10 MPs have the degrees of
Doctor and 14 MPs are Candidates of Sciences. Most of the MPs are lawyers, economists and engineers. Most
of the Members of the Parliament of Georgia, namely 47 MPs, are lawyers, specifically jurisprudents; 25 MPs
are the specialists of economics and 24 MPs are the specialists of different fields of engineering. It is notable
that 4 MPs are sports specialists, 3 MPs are actors, 1 MP is a theologian and 1 MP is an artist. As for female
Members of Parliament, majority of 17 female MPs, namely 10 female MPs are jurisprudents, 2 female MPs are
journalists, 1 female MP is a specialist of diplomacy and international law, 1 female MP is a psychologist and
1 female MP is a mechanical engineer. Other female Members of Parliament are the specialists of medicine,
oriental studies, history, chemistry and biology.

38

SPRING, FALL AND EXTRAORDINARY SESSIONS

CHAPTER

PARTICIPATION OF WOMEN IN THE ACTIVITIES

OF THE PARLIAMENTARY

In 2014, 17 Members of the Parliament of Georgia were women, namely the following: Beselia Eka, Bokuchava
Tinatini, Gogorishvili Khatuna, Goguadze Nino, Verulashvili Marika, Taktakishvili Chiora, Kobakhidze Manana,
Kordzaia Tamari, Maghradze Guguli, Mirotadze Ani, Nadirashvili Irma, Sajaia Mariami, Keinishvili Nana, Chapidze
Eliso, Chkhetiani Darejani, Khalvashi Pati, Khidasheli Tamari. Seven MPs out of the above were elected through
the majoritarian electoral system, and the remaining 10 MPs were elected through the party lists. 11 MPs are the
representatives of the parliamentary majority, 5 MPs are the representatives of the parliamentary minority and
1 MP is the representative of the Faction Free Democrats. This number (17) is about 11% of the total Members
of the Parliament of Georgia (150).
Among the female Members of Parliament, high parliamentary positions are occupied by Manana Kobakhidze (First
Deputy Chair of the Parliament) and Eka Beselia (the Chair of the Human Rights and Civil Integration Committee). Unlike the data from the previous year, there are no female MPs in the top five Members of Parliament who
initiated most of the draft laws in 2015. The data on activity in initiation of draft laws by female MPs is as follows:

Eka Beselia - 17
Nana Keinishvili - 4
Guguli Maghradze - 3
Tamar Kordzaia - 3
Manana Kobakhidze - 2
Tamar Khidasheli 1

In the reporting period female MPs were on average more active than their male colleagues in terms of legislative
initiatives.
The gender balance of the Parliament staff significantly differs from the gender balance of the Members of
Parliament. The Parliament staff comprises 462 women and 358 men.

39

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Table 1. Distribution of the Parliament staff according to gender

Position

Staff

Head of the Parliament Office

Deputy Head of the Parliament Office

Head of the Department

Head of the Office of the Chair of Parliament

Head of the Department

13

17

Head of the Department Head of Archives

Head of the Department Head of Library

Head of the Department - Chief Superintendent

Head of the Committee Office

Chief Usher

Assistant to the Chair of Parliament

Deputy Head of the Office of the Chair of

Parliament

Head of the Secretariat of the Deputy Chair of

Parliament

Head of the Press Centre

Head of the Secretariat

32

32

Chief public position

Total

Leading public
position

Total
40

SPRING, FALL AND EXTRAORDINARY SESSIONS

Position

Senior public position

Staff

Assistant to the Deputy Head of the Office

Assistant to the Committee Chair

10

Usher

Chief Specialist

23

56

Chief Specialist - Superintendent

Chief Specialist Chief Power Engineer

Chief Specialist Editor

Assistant to the Deputy Chair of Parliament

Senior Specialist

21

35

Leading Specialist

60

120

Leading Specialist - Superintendent

Leading Specialist Proof reader

Leading Specialist Secretary to the Treasury

Council

127

229

Secretary

23

Specialist

16

39

173

305

Total

Junior public position

Total
Total

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ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Position

Support staff

Freelance workers

42

Staff

Housekeeper

74

Support specialist

Joiner restorer

Electrician

Locksmith

Elevator operator

Firefighter

Worker

Plumber

Total

23

75

Assistant - Freelance worker

24

38

Freelance worker

14

Freelance worker - driver

85

Total

123

45

SPRING, FALL AND EXTRAORDINARY SESSIONS

Results of the public opinion survey regarding the increase of female representation in the Parliament
In 2015 a legislative initiative was proposed at the Parliament regarding the gender quota. We inquired public
opinion regarding this issue.

Diagram 6. Public opinion poll results on the increase of female MPs in the Parliament
TO WHAT EXTEND DO YOU SUPPORT THE INTRODUCTION OF MANDATORY QUOTAS IN ORDER
TO INCREASE THE NUMBER OF WOMEN IN THE PARLIAMENT? BY GENDER

I support it

I rather support than oppose it

I rather oppose than support it

I do not support it

DK/RA
100
90
80
70
60
50
40
30
20

46
33
24

24
15

10

20
8

11

11

0
Male

Female

43

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

CHAPTER

ACTIVITIES OF THE PARLIAMENTARY

COMMISSIONS AND COUNCILS

According to the Rules of Procedure of the Parliament (Article 71) temporary commission (hereinafter the
temporary commission) is a temporary body of the Parliament, which is established upon the decision of the
Parliament and in the cases determined by the Constitution of Georgia and the Rules of Procedure of the
Parliament. A temporary commission is accountable and liable to the Parliament of Georgia.
A temporary commission shall be obliged to submit the report on its activities 3 months prior to the expiration
of the term of authority of the Parliament.
Under Article 82 of the Rules of Procedure of the Parliament the periodicity of the sittings of the temporary
commission shall be determined by the temporary commission, but at least two sittings shall be held per month.
Under Article 84, the temporary commission draws conclusions, makes decisions, draws up recommendations
and proposals regarding the issue under consideration and submits them to the Bureau of Parliament and/
or at the plenary session of the Parliament.
The following Commissions and Councils were functioning in the Parliament in the reporting period:
1.
2.
3.
4.
5.
6.

Commission on Restoration of Territorial Integrity

Supervisory Council of the Budget Office
Council of Gender Equality
Treasury Council
Temporary Commission of 2014 Financial Audit of the State Audit Office
Permanent Parliamentary Council on Open and Transparent Governance was established on 30 December
2015 by an order of the Chair.
7. State constitutional commission and organizational committee for nationwide discussions on constitutional amendments

We requested information from each of the above Commissions and Councils on their activities. The information was not provided by the Temporary Commission of 2014 Financial Audit of the State Audit Office.

8.1 COMMISSION ON RESTORATION OF TERRITORIAL INTEGRITY

The Commission on Restoration of Territorial Integrity comprises 14 MPs. According to the internal regulations
of the Commission, in 2015 the Commission carried on coordination of the measures aimed at solving the
issues related to occupation of Abkhazia and Tskhinvali regions/South Ossetia. The practice of coordinating
work and holding joint sittings on the issues of conflict resolution was established among the Commissions
and Committees. Mainly joint sittings were held together with the Committees on Foreign Relations, European Integration, Diaspora and Caucasus Issues. In the reporting period 16 Commission sittings were
held, including 14 joint sittings together with other Committees. The information submitted by the Ministry
of Foreign Affairs and the Office of the State Minister of Georgia for Reconciliation and Civic Equality was
heard by the Commission at the joint sittings with other Committees. In addition, the information submitted
by the State Minister of Georgia on European and Euro-Atlantic Integration Gela Dumbadze and the report
of the Minister of Internally Displaced Persons from the Occupied Territories, Accommodation and Refugees
of Georgia Sozar Subari were also heard at the sitting. The report of the Government of Abkhazia on the
activities carried out in 2015 was also heard at the joint sitting. The Commission has discussed the expert
opinions of the non-governmental organisations for three times.

44

SPRING, FALL AND EXTRAORDINARY SESSIONS

8.2 COUNCIL OF GENDER EQUALITY

Council of Gender Equality comprises 12 Members of Parliament. Main objective of the Council is to analyse
the legislation of Georgia and to draw up proposals for addressing gender inequalities in the legislation,
examine draft legislative acts proposed under a legislative initiative in terms of gender equality. The Council
of Gender Equality does not have its own staff (it has only one coordinator, who is at the same time the
assistant to the Deputy Speaker).
For perfect operation of the Council it is reasonable to have an appropriate staff. This recommendation was
included in our 2014 Report on the Activities of the Parliament, although for proper exercise of respective
powers the staff was not increased in 2015 either. For the effective functioning of the Council of Gender
Equality it is necessary to increase the number of the employees of its office and carry out systemic analysis
of the draft laws.
Four sittings of the Council of Gender Equality were held in the reporting period. The Council of Gender
Equality has not performed gender analysis of the draft laws. However, unlike the previous year, according
to the information provided by the Council of Gender Equality, it discussed the following draft laws at the
sittings held in 2015:

Amendments to the Organic Law of Georgia on the Election Code of Georgia and on Political Associations
of the Citizens of Georgia;

Amendments to the Law of Georgia on Gender Equality;

Gender analysis of the draft law on 2016 budget
Draft law on making amendments to the Draft Law on Local Self-government Code and the Law of
Georgia on Elimination of Domestic Violence, Protection and Support of Victims of Domestic Violence.

According to the information provided by the Council of Gender Equality, the Council closely cooperates with
the non-governmental organisations working on gender issues and participates in the activities carried out
by those organisations. The Council also cooperates with the Assistant to the Prime Minister of Georgia on
Human Rights and Gender Equality Issues and the Human Rights Secretariat under the Administration of
the Government. According to the information provided by the Council of Gender Equality, the amendments
made to the Law on Local Self-government Code and the Law of Georgia on Elimination of Domestic Violence,
Protection and Support of Victims of Domestic Violence are considered by the Council as an improvement
in terms of protection of womens rights in the reporting period.

45

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

8.3 TREASURY COUNCIL

Under Article 261 of the Rules of Procedure of the Parliament of Georgia, the financial activities of the Parliament are controlled within his/her authority by the Chair of Parliament by means of a respective Committee and
the Treasury Council established for that purpose. The Treasury Council is the advisory body of the Chair of
Parliament. The Chair of Parliament determines the number of members of the Treasury Council and appoints
them out of the Members of Parliament in coordination with the Bureau of Parliament. The Treasury Council
comprises 11 Members of Parliament. The function of the Treasury Council is to prepare proposals regarding
certain issues, which are approved by the Bureau. Namely the functions of the Council include the issues of
the payroll budget of the faction staff members, the payroll budget of the parliamentary majority and minority
staff members, the issues of providing the Members of Parliament with accommodation, etc.
In the reporting period the Treasury Council has made 156 decisions, including decisions on the following issues:

utility payments of the Parliament;

maintenance of the vehicles of the Parliament;
procurement for the parliament staff;
increase of telephone communication and roaming service limits;
conclusion of agreements with business entities for organizing visits of the parliamentary delegations;
provision of accommodation to the Members of Parliament;
recommendation on carrying out appropriate procedures for reducing budget expenses for the vehicle
fleet of the parliament staff;
repair works of the floors and rooms of the Parliament building;
reduction of the budget of the Parliament by GEL 1 000 000 for mobilization of funds for elimination of
the effects of the natural disaster of 13 June;
transfer of the cars to the Service Agency for further disposal;
distribution of the payroll budget among the staff of the Committees;
allocation of remuneration for the invited specialists of the Committees.

8.4 SUPERVISORY COUNCIL OF THE BUDGET OFFICE

The Council comprises 5 Members of Parliament. The Supervisory Council of the Budget Office coordinates
the activities of the Budget Office according to the Rules of Procedure. In the reporting period the Budget
Office submitted to the Supervisory Council the Strategic Development Plan of 2015-2018 and Action Plan
of 2015 of the Budget Office. The Supervisory Council approved the plan. The Budget Office has also submitted to the Supervisory Council the Report on 2014 Activities of the Budget Office of the Parliament. In
the reporting period several workshops were held between the members of the Supervisory Council and the
representatives of the Budget Office of the Parliament.

46

SPRING, FALL AND EXTRAORDINARY SESSIONS

8.5 STATE CONSTITUTIONAL COMMISSION AND ORGANIZATIONAL COMMITTEE

FOR NATIONWIDE DISCUSSIONS ON CONSTITUTIONAL AMENDMENTS
During the reporting period, two commissions were created for the publishing of the constitutional amendments
and organization of nationwide discussions. This work was continued by the Constitutional Commission.
In 2013, the Constitutional Commission was created, the aim of which was to prepare a draft law related to
amendments to the Constitution. The Commission continued work during the reporting period. The Chairperson
of the Georgian Parliament David Usupashvili was appointed as the chairperson of the Commission. Thematic
working groups were created in the Commission. Because of the lack of quorum, most of the working group
meetings were not held. The presentation of the prepared draft laws to the Parliament was delayed several
times. Initially it was 1 September of 2014, then to 1 March of 2015 and 15 September of 2015, and finally
till 29 February of 2016. During its existence, the Constitutional Commission held three meetings, including
one session on March 28, 2015. The work of the Commission ended without results on February 1, 2016.
By the resolution of 11 December of 2015, the Parliament of Georgia established the Commission of Publication of Draft Constitutional Law on Making Amendments to the Constitution of Georgia and Organisation
of Its Public Discussion, which comprised 20 members. The issue of making amendments to the Constitution
of Georgia was related to the replacement of the majoritarian electoral system with the proportional electoral
system. The author of the draft law were 200 000 voters.
By the resolution of 18 September 2015 the Parliament established the Commission of Publication of Draft
Constitutional Law on Making Amendments to the Constitution of Georgia and Organisation of Its Public
Discussion, which comprised 10 members. According to the proposed amendments the Parliament shall
comprise 150 Members of Parliament elected through proportional electoral system according to multiple-seat
electoral districts, and the election threshold shall be reduced from 5% to 4%.

47

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

CHAPTER

ACTIVITIES OF THE MEMBERS OF

PARLIAMENT

Transparency International Georgia has evaluated the activities of the Members of Parliament according to
three main criteria:
1. The frequency of speeches given by the Members of Parliament at the plenary sessions: making statements, asking questions, stating opinions regarding draft laws or other discussed topics;
2. The right granted to the Members of Parliament to submit the legislative initiative;
3. The comments made by the Members of Parliament regarding draft laws.

9.1 NUMBER OF DRAFT LAWS INITIATED AND APPROVED

BY MEMBERS OF PARLIAMENT AND THE INITIATORS
In 2015 the right to propose a legislative initiative was exercised only by 34 Members of Parliament, 24 out
of which are the representatives of the parliamentary majority.
Diagram 7. Laws initiated in 2015 and their authors
Ind. MPs
Z. Japaridze
N. Ebanoidze
G. Popkhadze
T. Mechiauri
O. Chrdileli
E. Beselia
G. Zhorzholiani
G. Topadze
I. Jachvliani
G. Khachidze
M. Machavariani
Z. Tkemaladze
N. Keinishvili
E. Tripolski
K. Subeliani
G. Magradze
T. Kordzaia
G. Meladze
S. Ratiani
T. Chkuaseli
M. Kobakhidze
A. Kantaria
P. Kublashvili
I. Chikovani
P. Sakvarelidze
G. Gachechiladze
G. Samkharauli
G. Kakhiani
P. Kiknavelidze
Z. Kutsnashvili
A. Bolkvadze
G. Tsereteli
T. Khidasheli
Ch. Taktakishvili

48

Free Democrats

Minority

Majority
54

20
19
18
17
17
16
6
5
5
5
5
4
4
4
3
3
3
3
2
2
2
2
2
1
1
1
1
1
1
1
1
1
1
0

10

20

30

40

50

60

SPRING, FALL AND EXTRAORDINARY SESSIONS

Also, it should be noted that 81 MPs initiated amendments to the Election Code, but we could not obtain
information on the individual MPs who initiated amendments.32

Diagram 8. Number and authors of draft laws adopted in 2015

Ind. MPs
N. Ebanoidze
T. Mechiauri
G. Zorzholiani
E. Tripolski
T. Kordzaia
G. Popkhadze
V. Khmaladze
A. Qantaria
I. Sesiashvili
I. Chikovani
G. Kakhiani
G. Maghradze
Z. Tkemaladze
Z. Kutsnashvili
T. Japaridze
T. Khidasheli
A. Bolkvadze
P. Kiknavelidze
Z. Kvachantiradze
D. Saganelidze
M. Kobakhidze
Sh. Shavgulidze
D. Onoprishvili
G. Gachechiladze

Free Democrats

Majority
19
17

7
4
3
3
3
2
2
2
1
1
1
1
1
1
1
1
1
1
1
1
1
1
0

10

12

14

16

18

20

32
We asked for that information from the Organisation Department of the Parliament of Georgia, the Procedure Committee of the
Parliament of Georgia, Faction Georgian Dream, but we could not obtain the list of 81 MPs. The scanned version of the signatures
is attached to the draft law published on the web-site of the Parliament of Georgia, from which the Members of Parliament cannot
be identified http://info.parliament.ge/file/1/BillReviewContent/93553;

49

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

9.2 NUMBER OF SPEECHES GIVEN BY MEMBERS OF PARLIAMENT

AT THE PLENARY SESSIONS
The following MPs have given most of the speeches at the plenary sessions:
Representatives of the parliamentary majority:
1.
2.
3.
4.
5.

Eka Beselia - 113

Tkemaladze Zurab - 93
Volsky Giorgi - 91
Kutsnashvili Zakaria - 86
Kakhiani Giorgi - 80

Representatives of the parliamentary minority:

1.
2.
3.
4.
5.

Gogorishvili Khatuna - 112

Chiora Taktakishvili - 112
Sergo Ratiani - 85
Akaki Minashvili - 71
Davit Darchiashvili- 66

Others:
1.
2.
3.
4.
5.

Chikovani Irakli - 42
Pavle Kublashvili - 38
Shavgulidze Shalva - 26
Japaridze Zurab - 19
Onoprishvili Daviti - 15

In 2015 26 Members of Parliament did not exercise their right to give a speech.
According to the data of 2015, 124 Members of Parliament exercised their right to give a speech, which is
slightly more than the figure of the previous year (in 2014 114 MPs exercised their right to give a speech).
The following Members of Parliament did not exercise their right to give a speech at a plenary session neither
in 2013, 2014 nor in 2015: Valeri Gelashvili, Zaza Kedelashvili, Gogi Liparteliani, Ali Mamedovi, Enzel
Mkoyani, Koba Nakopia, Ramaz Nikolaishvili, Giorgi Peikrishvili, Levan Kardava, Tamaz Kacheishvili,
Nikoloz Kipshidze, Revaz Shavlokhashvili, Teimuraz Chkaidze, Tengiz Khubuluri.

50

SPRING, FALL AND EXTRAORDINARY SESSIONS

Diagram 9. Number of speeches given by MPs at the plenary sessions (30 and above)
Ind. MPs

Free Democrats

Beselia Eka
Taktakishvili Chiora
Gogorishvili Khatuna
Tkemaladze Zurab
Volski Giorgi
Kutsnashvili Zakaria
Ratiani Sergo
Kantaria Aleksandre
Kakhiani Giorgi
Kordzaia Tamar
Kurtanidze Eldar
Gachechiladze Giorgi
Minashvili Akaki
Darchiashvili Davit
Khmaladze Vakhtang
Kandelaki Giorgi
Tsiklauri Nugzar
Baramidze Giorgi
Popkhadze Gedevan
Melikishvili Zurab
Magradze Guguli
Lortkipanidze Dato
Chikovani Irakli
Zhorzholiani Gia
Kiguradze Ivane
Machavariani Mikheil
Kublashvili Pavle
Tsereteli Giorgi
Khundadze Dimitri
Subeliani Koba
Kvachantiradze Zviad
Tarkhnishvili Levan
Mechiauri Tamaz
Tevdoradze Giorgi
Dzidziguri Zviad
Londaridze Tariel

Minority

Majority
113
112
112
93
91
86
85

80
80
77
76
75
71
66
63
51
47
46
45
45
45
44
42
41
41
39
38
37
36
36
35
35
33
33
31
31
0

20

40

60

80

100

120

51

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Results of the public opinion survey regarding the debates held at the Parliament
Transparency International Georgia surveyed public opinion regarding the debates held at the Parliament
and the extent to which those debates are related to the topical issues for the population.

Diagram 10. Public opinion poll results on the effect of the debates on citizens lives
TO WHAT EXTEND DO YOU AGREE OR DISAGREE WITH THE FOLLOWING STATEMENT:
PARLIAMENT HOSTS DEBATES ON MATTERS THAT ARE CRUCIAL TO THE POPULATION?
BY SETTLEMENT TYPE
Fully agree

Agree

Partially agree, partially disagree

Disagree

Fully disagree

Dont know/refuse to answer

100
90
80
70
60
50
40

36

30

24

20

20
10

30

2
Capital

30

33
23

21

14
5

23
6

Urban

11

Rural

9.3 COMMENTS OF MEMBERS OF PARLIAMENT ON DRAFT LAWS

One of the important components of evaluation of the activities of the MPs is their comments made at the
Committee sittings during the discussion of the draft laws, which is one of the indicators of activity of the
MPs in the legislative process. The comments are registered in the comment sheet, which is attached to the
draft law and is published on the web-site of the Parliament. We examined comment sheets of each draft law.
In the reporting period total comments were made by these MPs. In this regards the most active MPs were:
Vakhtang Khmaladze 44 comments, Tamar Kordzaia 9 comments and Paata Kiknavelidze 6 comments.

52

SPRING, FALL AND EXTRAORDINARY SESSIONS

Diagram 11. Number of opinions on draft laws by MPs in 2015

Vakhtang Khmaladze
Tamar Kordzaia
Paata Kvizhinadze
Gia Zhorzholiani
Zurab Tkemaladze
Nodar Ebanoidze
Giorgi Kakhiani
Bidzina Gujabidze
Fridon Sakvarelidze
Zakaria Kutsnashvili
Giorgi Tsagareishvili
Zviad Dzidziguri
Shalva Kiknavelidze
Akaki Bobokhidze
Giga Bukia
Paata Kvizhinadze
Marina Tsiklauri
Eliso Chapidze

44
9
6
3
2
2
1
1
1
1
1
1
1
1
1
1
1
1
0

10

15

20

25

30

35

40

45

50

Results of the public opinion survey regarding the activities of the Members of Parliament
Transparency International Georgia surveyed the opinion of the citizens of Georgia regarding the activities of
the Members of Parliament. The citizens, interviewed within the scope of the survey, named the MPs whose
performance was most positively evaluated.
Diagram 12. Public opinion poll results on the activities of the MPs
MEMBERS OF THE GEORGIAN PARLIAMENT WHOSE WORK WAS
EVALUATED AS POSITIVE
0
David Bakradze
David Usupashvili
Gia Volski
David Sergeenko
Eka Beselia
Irakli Alasania
Giorgi Kvirikashvili
zviad Dzidziguri
Zakaria Kutsnashvili
Ioseb Jachvliani
Gogi Topadze
Iraki Sesiashvili
Gedevan Popkhadze
Other
I do not evaluate anyones work as positive
I evaluate everybodys work as positive
DK/RA

10

20

30

40

50

60 70

80 90 100

9
8
4
2
2
2
2
2
2
1
1
1
1
23
23
3
44

53

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

9.4 BUSINESS TRIPS OF THE MEMBERS OF PARLIAMENT

Business trips of the parliamentary delegations (including of the invited experts and advisors), Members of
Parliament and civil servants of the Parliament staff are determined by an order of the Chair of Parliament.
The issue of a business trip of parliamentary delegations and Members of Parliament is reviewed and an
appropriate decision is made by the Chair of Parliament, or in case of his/her absence by the First Deputy
Chair of Parliament or an Acting Deputy Chair, by approving the business trip application. As a rule, Members
of Parliament (as well as civil servants of the Parliament staff) are obliged to fill in a business trip application
one week prior to the business trip, where they must specify the purpose, reason and place of a business trip,
the travelling and accommodation expenses per diem and other additional business trip expenses determined
by law, and the party incurring those expenses.
In the reporting period GEL 1,513,385.63 was spent for the business trip expenses. 98 Members of
Parliament33 were on a business trip.
Table 2: Information on the business trips of MPs in 2015
Expenses

Number of Business
Trips

Japaridze Tedo

185954.11

42

Usupashvili Daviti

139736.26

19

Bakradze Daviti

86,068.74

22

Kobakhidze Manana

69122.43

17

Kandelaki Giorgi

68166.2

17

Tsereteli Giorgi

66197.79

16

Dolidze Viktor

63381.42

24

Beselia Eka

57545.99

17

Chikovani Irakli

54041.67

14

Sesiashvili Irakli

51492.63

16

Maghradze Guguli

50716.91

13

Berdzenishvili Levani

49,424.06

19

Kvachantiradze Zviadi

42115.38

15

Taktakishvili Chiora

37106.23

14

Abashidze Zurabi

29026.66

11

Volsky Giorgi

25684.35

11

Baramidze Giorgi

24594.97

The MP mandates of Tinatin Khidasheli and Gigla Agulashvili were terminated. In 2015, prior to the termination of the mandate,
the statistics was as following Tinatin Khidasheli - 9 visits, 27482.58 GEL, Gigla Agulashvili - 1 visit, 1364.77 GEL, and David
Saganelidze - 8 visits, 10058.5 GEL.
33

54

Full Name

SPRING, FALL AND EXTRAORDINARY SESSIONS

Full Name

Expenses

Number of Business
Trips

Machavariani Mikheil

20696.82

Bukia Giga

17314.09

Onoprishvili Daviti

16238.67

Dzidziguri Zviadi

15124.89

Zhorzholiani Gia

14807.53

Sanikidze Gubazi

12652.78

Poghosiani Ruslani

12577.51

Darchiashvili Davit

11,541.31

Ebanoidze Nodari

9689.52

Vakhangishvili Malkhazi

9669.45

Tsagareishvili Giorgi

8814.65

Samkharauli Gela

8615.45

Sajaia Mariam

9724.43

Londaridze Tarieli

8223.68

Sakvarelidze Pridoni

7719.84

Maisuradze Temuri

7693.77

Nadirashvili Irma

7634.01

Melikishvili Zurabi

7323.16

Kachakhidze Merabi

6739.4

Chapidze Eliso

6669.87

Popkhadze Gedevan

6219.6

Kutsnashvili Zakaria

5819.57

Chrdileli Otari

5314.03

Kordzaia Tamari

4855.86

Tripolsky Erekle

4440.26

Kiknavelidze Shalva

4309.72

Bokuchava Tinatin

4268.25

Papuashvili Zaza

4176.61

Megrelidze Omari

3823.34

Chitashvili Vazha

3823.34

Kiknavelidze Paata

3808.86

55

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Expenses

Number of Business
Trips

Enukidze Gocha

3803.85

Gabashvili Giorgi

3761.89

Khundadze Dimitri

3740.42

Topadze Giorgi

3563.29

Japaridze Viktor

3476.22

Tamazashvili Aleksandre

3430.9

Shavgulidze Shalva

3401.36

Zhvania Giorgi

3391.96

Bezhashvili Levani

3370.19

Kakhiani Giorgi

3345.54

Tsiklauri Mirian

3312.37

Lezhava Paata

3196.73

Kardava Levani

3034.65

Kvizhinadze Paata

2982.83

Baratashvili Paata

2925.1

Gujabidze Bidzina

2665.77

Tsereteli Malkhazi

2665.77

Mechiauri Tamazi

2570.16

Chkuaseli Teimuraz

2494.5

Tsiskarishvili Petre

2477.53

Tkemaladze Zurabi

2473.5

Mamedovi Ali

2465.37

Tsiklauri Nugzari

2465.37

Khmaladze Vakhtangi

2445.6

Minashvili Akaki

2187.2

Gachechiladze Giorgi

2146.22

Japaridze Zurabi

2115.89

Bobokhidze Akaki

1948.59

Tevdoradze Giorgi

1933.53

Berdzenishvili Daviti

1897.75

Mirotadze Ani

1717.63

Full Name

56

SPRING, FALL AND EXTRAORDINARY SESSIONS

Expenses

Number of Business
Trips

Gozalishvili Giorgi

1128.62

Peikrishvili Giorgi

1128.62

Zviadauri Zurabi

1054.62

Lortkipanidze Daviti

1054.62

Ckhaidze Teimurazi

1054.62

Khabareli Shota

1054.62

Petrosyani Samvel

1019.48

Gogorishvili Khatuna

937.72

867

Vashadze Giorgi

799.28

Bashaleishvili Demuri

582.8

Chkhetiani Darejani

509.04

Khechiashvili Giorgi

442.01

Khachidze Giorgi

417.18

Mkoyani Enzel

205.5

Nergadze Teimuraz

196.98

Khalvashi Pati

196.98

Full Name

Lemonzhava Vakhtangi

57

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

CHAPTER

10

PARTICIPATION OF THE MEMBERS OF

PARLIAMENT IN THE PLENARY SESSIONS
AND WORK OF THE COMMITTEES;
THE ISSUE OF DISCIPLINARY LIABILITY

In 2015 there were 2199 cases of absence from the plenary session with a reasonable excuse (which is 272
more than in 2014). There were not any cases of deduction of the MPs salary by 10% for missing more than
one session with unreasonable excuse. (According to the Rules of Procedure of the Parliament, the salary
of an MP is not deducted in case of missing an extraordinary session).
Transparency International Georgia requested the information from the Organisation Department of the
Parliament of Georgia on participation of the Members of Parliament in the plenary sessions.

10.1 REASONABLE CAUSE FOR ABSENCE FROM PLENARY

SESSIONS AND COMMITTEE MEETINGS
Members of Parliament missed 2199 sessions of 2015 spring and autumn sessions of the Parliament with
different reasonable excuses. The number of absences according to the excuses is as follows:

Illness 118 absences (reduced by 64 cases comparing to 2014);

Family circumstances 1442 absences (increased by 65 cases comparing to 2014);
Official business trip 337 absences (reduced by 31 cases comparing to 2014);
Political opinions 302 absences.

The Parliament could not make amendments to the Rules of Procedure of the Parliament, according to
which family circumstances would no longer constitute a reasonable excuse. Namely, the Procedural
Issues and Rules Committee initiated a respective draft law, but an alternative proposal of the Free
Democrats was submitted at the stage of discussion. The draft law was adopted in a single hearing at
the plenary session. The leading Committee approved the draft law in a second committee hearing, although
it was not discussed in a second hearing at the plenary session.
We also requested information from the Parliament on the absence of MPs from the Committee sittings with
a reasonable excuse. The information was provided to us by all the Committees except for the Committee
on European Integration.

58

SPRING, FALL AND EXTRAORDINARY SESSIONS

Diagram 13. Twenty MPs who were absent from the most plenary sessions with a reasonable excuse

32
33
33
34
35

Bokuchava Tinatin
Liparteliani Gogi
Japaridze Tedo
Tsiskarishvili Petre
Vashadze Giorgi
Chikovani Irakli
Onoprishvili Davit
Abashidze Zurab
Malashkhia Shota
Kardava Levan
Lezhava Paata
Akhalaia Roland
Goguadze Nino
Dolidze Viktor
Tsagareishvili Giorgi
Suleimanovi Azer
Kipshidze Nikoloz
Kedelashvili Zaza
Nikolaishvili Ramaz
Nakopia Koba

36
36
38
39
40
40
41
44
44
46
46
47
51
53
55
0

10

20

30

40

50

60

59

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Diagram 14. Twenty MPs who were absent from the most Committee sittings with a reasonable excuse
Ind. MPs

Free Democrats

Majority

Minority

Levan Bezhashvili

70

Zurab Japaridze

52

Azer Suleimanovi

45

Giorgi Karbelashvili

44

Vakhtang Lemonjava

41

Giorgi Vashadze

41

Petre Tsiskarishvili

40

Davit Onoprishvili

39

Nino Goguadze

39

Zurab Chilingarashvili

37

Tinatin Bokuchava

33

Giorgi Tsereteli

31

Levan Tarkhnishvili

30

Davit Chavchanidze

29

Giorgi Tsagareishvili

29

Goderdzi Bukia

27

Zurab Abashidze

27

Akaki Minashvili

26

Davit Dartsmelidze

26

Zurab Melikishvili

25
0

10

20

30

40

50

60

70

80

10.2 ABSENCE FROM PLENARY SESSIONS AND COMMITTEE

MEETINGS WITHOUT A REASONABLE CAUSE
In 2015, the following MPs have the most absences from plenary sessions with an unreasonable excuse:

Zurab Japaridze (10 absences)

Kipshidze Nikolozi (10 absences)
Koba Davitashvili (9 absences)
In 2015, the following MPs have the most absences from Committee sittings with an unreasonable excuse:

60

Nugzar Tsiklauri (73 absences)

Mariam Sajaia (69 absences)
Lejava Paata (62 absences)
Giorgi Gviniashvili (62 absences)

SPRING, FALL AND EXTRAORDINARY SESSIONS

Diagram 15. Number of absences from plenary session with an unreasonable excuse
Ind. MPs

Free Democrats

Khachidze Goga
Petrosiani Samvel
Meladze Giorgi
Kublashvili Pavle
Kardava Levan
Shioshvili Tamaz
Dzidziguri Zviad
Japaridze Tedo
Dumbadze Murman
Shavlokhashvili Revaz
Butskhrikidze Kakha
Khachidze Giorgi
Davitashvili Koba
Kipshidze Nikoloz
Japaridze Zurab

Majority

Minority

4
4
4
4
4
4
4
4
5
5
6
6
8
9
10
0

10

12

Diagram 16. Number of absences from Committee sittings with an unreasonable excuse
Ind. MPs

Minority

Melikishvili Zurab
Nakopia Koba
Butskhrikidze Kakha
Tsiskarishvili Petre
Kardava Levan
Ratiani Sergo
Vashadze Giorgi
Chavchanidze Davit
Kedelashvili Zaza
Chilingarishvili Zurab
Minashvili Akaki
Khachidze Giorgi
Kipshidze Nikoloz
Tevdoradze Giorgi
Subeliani Koba
Taktakishvili Chiora
Megrelidze Omar
Targamadze Giorgi
Kublashvili Pavle
Ghviniashvili Giorgi
Lezhava Paata
Sajaia Mariam
Tsiklauri Nugzar

39
44
44
44
45
46
47
50
50
52
53
54
55
55
56
57
58
58
59
62
62
69
73
0

10

20

30

40

50

60

70

80

61

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

CHAPTER

11

EVALUATION OF THE WORK OF THE

COMMITTEES OF THE PARLIAMENT

In order to evaluate the work of the Parliament, Transparency International Georgia requested information
from the Organisation Department of the Parliament and examined the information published on the web-site
of the Parliament.
It is notable that the Reports on Activities of the Committee and the Committee Action Plans during 2015
Spring Session of all Committees are not published on the web-site of the Parliament (which is submitted
to the Parliament upon the commencement of the autumn session according to the Rules of Procedure of
the Parliament).
For the purpose of monitoring of the activities of the Parliamentary Committees it is also important that the
Opinions, drawn up by leading and mandatory Committees, be published on the web-site of the Parliament.
This is one of the recommendations of our organisation in the Open Parliament Action Plan.
Certain criteria are emphasized in the evaluation of the performance of the Committees, which are
important in the working process of the Parliamentary Committees; these criteria are as follows:

Participation of the Committees in the legislative process (number of initiated draft laws, discussed draft

laws, held sittings);

Discussion of the legislative proposals by the Committees;
Response to the applications submitted by the citizens;
Relations with the experts;
Establishment of working groups by the Committees.

11.1 PARTICIPATION OF THE COMMITTEES IN THE LEGISLATIVE PROCESS

In the reporting period the most draft laws were initiated by the Legal Issues Committee 80 draft laws. The
Human Rights and Civil Integration Committee initiated 22 draft laws and the Healthcare and Social Issues
Committee initiated 12 draft laws.
According to the number of discussed draft laws the leading position is occupied by the Legal Issues Committee with 397 discussed draft laws (the committee was leading in 220 draft laws and prepared obligatory
opinions on 177 draft laws). It is followed by the Human Rights and Civil Integration Committee with 277
discussed draft laws. The Sectoral Economy and Economic Policy Committee discussed 186 draft laws and
the Defence and Security Committee discussed 134 draft laws.
In the reporting period the most committee sittings were held by the Legal Issues Committee 78 sittings;
then comes the Human Rights and Civil Integration Committee with 75 committee sittings held and the Budget
and Finance Committee with 67 sittings held.

62

SPRING, FALL AND EXTRAORDINARY SESSIONS

Diagram 17. Draft laws discussed, committee sittings held and draft laws initiated by the Committees
in 2015
Number of draft laws discussed
Number of held committees
Number of initiated draft laws by committee

Legal Issues Committee

Human Rights and Civil Integration Committee
Sector Economy and Economic Policy Committee
Defence and Security Committee

Committee on European Integration

Healthcare and Social Issues Committee
Education, Science and Culture Committee
Regional Policy and Self-governance Committee
Agrarian Issues Committee
Environmental Protection and Natural Resources Committee
Foreign Relations Committee
Sports and Youth Issues Committee
Diaspora and Caucasus Issues Committee

186

57

277

75

22

Procedural Issues and Rules Committee

Budget and Finance Committee

397

78
80

27

2 36

134
113

73
67
62
41
4
35
12 50
35
47
3
29
41
6
27
27
0
20
31
0
17
39
0
16
28
11
11
24
0
0

50 100 150 200 250 300 350 400 450

11.2 DISCUSSION OF LEGISLATIVE PROPOSALS BY THE COMMITTEES

According to the Rules of Procedure of the Parliament, a legislative proposal is a well-reasoned address
drawn up according to the established procedure, which is submitted to the Parliament by a subject not
having the right to launch a legislative initiative, on adopting a new law or making amendments to the law or
invalidating the law.
The citizens of Georgia, state authorities (except for the executive authorities and legal entities under public
law), local self-government bodies, political and social associations, registered in Georgia according to the
established procedure, and other legal entities have the right to submit a legislative proposal. The proposals
are discussed by the Parliament according to the procedure established by law. As a result of the committee
discussion a legislative proposal may be adopted or rejected by a reasoned decision of the Committee.
We inquired the number of legislative proposals discussed by the Committees and the results of those
discussions.
The Foreign Relations, Sports and Youth Issues, Environmental Protection and Natural Resources, Diaspora
and Caucasus Issues, Procedural Issues and Rules and European Integration Committees have not discussed any legislative proposal.
63

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

The Agrarian Issues Committee has discussed 2 legislative proposals submitted by natural persons, neither
of which was initiated by the Committee.
The Human Rights and Civil Integration Committee has discussed 28 legislative proposals.
The author of most of the legislative proposals was the Public Defender of Georgia.
According to the information provided by the Committee, it has agreed on all the proposals submitted by the
Public Defender, taking into consideration its own comments, and prepared a positive opinion. The Committee
initiated the following draft laws within the scope of the legislative proposals submitted by the Public Defender:

on making amendments to the Organic Law of Georgia on the Public Defender of Georgia;
on making amendments to the Civil Procedure Code of Georgia;
on making amendments to the Law of Georgia on Elimination of All forms of Discrimination.
The Regional Policy and Self-government Committee has discussed 3 legislative proposals (two of which
were submitted by natural persons and one of which was submitted by a legal person), which were rejected
by the Committee.
The Education, Science and Culture Committee has discussed 4 legislative proposals, based on two of
which the Committee initiated draft laws.
The Legal Issues Committee has discussed 15 legislative proposals. Most of the authors of the legislative
proposals were legal persons. Based on the legislative proposal of the Public Defender the Committee initiated
a draft law, which was adopted by the Parliament. According to the law the parents and custodians of juniors,
who reach the age of 16, shall no longer have the right to give consent for marriage.
The Procedural Issues and Rules Committee has discussed 5 legislative proposals, all of which were rejected.
The Budget and Finance Committee has discussed 6 legislative proposals, none of which were initiated.
Most of the legislative proposals were submitted by natural persons.
The Healthcare and Social Issues Committee has discussed 12 legislative proposals. Based on 6 legislative
proposals the Committee has initiated a draft law on making amendments to the Law of Georgia on State
Compensation and State Academic Scholarships, which was adopted by the Parliament. Most of the authors
of the proposals were natural persons.
In the reporting period the Sectoral Economy and Economic Policy Committee has discussed 6 legislative
proposals, which were mainly submitted by the natural persons. The Committee has initiated a draft law
based on 2 legislative proposals.

64

SPRING, FALL AND EXTRAORDINARY SESSIONS

11.3 RESPONSE TO THE APPLICATIONS SUBMITTED BY THE CITIZENS

The activities of the Parliamentary Committees are not confined only to the initiation of draft laws and holding
committee hearings. Based on their specifics, various Committees carry out many other important activities.
The response to the applications submitted by the citizens should be especially highlighted. The Human
Rights and Civil Integration Committee has particularly high rate of referral. This Committee has the highest
rate of referral from the citizens of Georgia this year like in 2014. Namely, in the reporting period 11 107
correspondence were submitted to the Committee, 6690 of which are applications; this is approximately 43%
of the total number of letters submitted to the Parliament in 2015.
In response, 4057 letters were sent by the Committee to various entities, 3878 letters out of which were sent
to the agencies and 179 letters of explanation were sent to the applicants.
The second Committee in the ranking according to the number of submitted letters is the Healthcare and Social
Issues Committee, to which 1448 applications were submitted. The Committee responded to 773 applications.
697 letters were submitted to the Legal Issues Committee, 575 out of which the Committee responded to.

Diagram 18. Number of inquiries and responses by committees in 2015

Responses
Inquiries
4057

Human Rights and Civil Integration Committee

Healthcare and Social Issues Committee

773

Legal Issues Committee

575
697
448
448
375
375
206
206
170
170
162
162
151
151
132
132
132
132
110
110
97
110
26
26
24
24

Sector Economy and Economic Policy Committee

Education, Science and Culture Committee
Regional Policy and Self-governance Committee
Defence and Security Committee
Budget and Finance Committee
Diaspora and Caucasus Issues Committee
Foreign Relations Committee
Agrarian Issues Committee
Sports and Youth Issues Committee
Environmental Protection and Natural Resources Committee
Committee on European Integration
Procedural Issues and Rules Committee

6690

1448

0 1000 2000 3000 4000 5000 6000 7000 8000

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ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

11.4 ESTABLISHMENT OF WORKING GROUPS BY

COMMITTEES AND OUTCOMES OF THEIR PERFORMANCE
Under Article 29(2) of the Rules of Procedure of the Parliament, in the process of activities of the Committee it
establishes working groups for controlling the execution of the decisions of the Parliament and its Committees,
for preliminary preparation of legislative issues and for other current issues. The Committee staff ensures the
activities of the working groups.
1. In the reporting period the Agrarian Issues Committee established two working groups, within the scope
of which the work is carried out regarding preparation and initiation of draft laws;
2. In the reporting period the Human Rights and Civil Integration Committee established the following
6 working groups:
On the facts of torture and inhuman treatment;
On the facts of illegal violation of the property rights;
On Elimination and prevention of violence against women;
On developing new mechanisms for early conditional release of convicts;
On drawing up legislative amendments according to the legislative proposals of the Public Defender;
On drawing up legislative amendments on institutional enhancement of the Public Defender
On 20 October 2015 the working groups on the facts of torture and inhuman treatment and on the facts of
illegal violation of the property rights submitted a summary report to the Committee sitting. These working
groups have also prepared summary documents opinions: On the Facts of Illegal Violation of Property
Rights in 2004-2012 and On the Facts of Torture and Inhuman Treatment in 2004-2012, which included the
recommendations of the working groups towards various authorities.
3. Environmental Protection and Natural Resources Committee established 2 working groups:
On approval of the types of living genetically modified organisms permitted on the territory of Georgia;
On preliminary review of the Forest Code of Georgia.
4. A representative working group was established at the Committee on European Integration for the
purpose of drawing up the text of the law on protection of consumers rights, as a result of which the
Committee has drawn up and initiated the Draft Law on Protection of Consumers Rights and its accompanying legislative amendments. The executive legislative bodies of Georgia, the non-governmental
organisations protecting the consumers rights, business representatives and experts participated in the
working process of the working group.
5. The interagency working group was established within the Defence and Security Committee in relation
with the adoption of the law on state secrets. The draft law was adopted by the Parliament.
6. The Legal Issues Committee established 4 working groups in relation to the change of the rules of
questioning witnesses, the reform of the legal institution of legal capacity, abolition of the institution of
eviction by police and based on the legislative proposals submitted by the members of the Supreme
Council of the Republic of Georgia of 1990-1991. According to the information submitted by the Committee, corresponding legislative acts were initiated in the first three cases.
7. The Regional Policy and Self-government Committee established a working group in the process
of drawing up and preparation of the draft law on Development of Mountainous regions, initiated by the
Government of Georgia. The law was adopted by the Parliament.
8. The Budget and Finance Committee established a working group, based on the recommendations of
which the following laws were initiated: the Law on Insurance, the Law on the National Bank of Georgia
and its accompanying draft laws and the Law on Audit of Accounting and Financial Statements.

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SPRING, FALL AND EXTRAORDINARY SESSIONS

9. According to the information provided by the Sports and Youth Issues Committee a thematic group
was established at the Ministry of Sport and Youth Affairs of Georgia by joint representation of the
representatives of the Committee and the Ministry. The provided information does not specify whether
this is the working group established by the Committee or not.
10. In 2015 working groups were not established at the Healthcare and Social Issues Committee.
However, based on the information provided by the Committee, 4 working groups established by the
Committee in 2014 continue work on 6 legislative proposals submitted by various non-governmental
organisations, the Public Defender and the citizens. In one case the Draft Law on State Compensation
and Academic Scholarships was initiated, which was adopted by the Parliament on 27 November 2015.
The Education, Science and Culture, Sectoral Economy and Economic Policy, Diaspora and Caucasus Issues, Foreign Relations and Procedural Issues and Rules Committees have not established
working groups in the reporting period.

11.5 RELATIONSHIP OF COMMITTEES WITH EXPERTS

We asked the Parliamentary Committees how many times did they address experts, international non-governmental organisations regarding the opinions and recommendations on the draft laws (which draft laws
specifically) and in which cases were they provided with written opinions and recommendations on the
draft laws in the reporting period.
In most cases the information provided by the Committees does not specify whether the Committees have
asked for the expert opinions themselves or the experts have sent the opinions by their own initiative.
In the reporting period, in the process of working on the draft law on Agricultural Insurance the Agricultural
Issues Committee applied to an international organisation for recommendations. In addition, in the process
of working on the Draft Law on Wind (Field Protection) Zones the Committee held consultations with the
non-governmental organisations, working in the area of environmental protection, and the National Academy of Agricultural Sciences. Some of the submitted proposals and remarks were included in the draft law.
The Human Rights and Civil Integration Committee has invited an international expert in relation to
the preparation of the set of legislative amendments (On Early Pre-school Education) initiated by the
Committee, with the support of the UN Development Programme (UNDP).
The Sectoral Economy and Economic Policy Committee stated that 12 written opinions were submitted
based on the application with regard to the discussed draft laws.
The interagency working group was established at the Defence and Security Committee regarding the
adoption of the Law on State Secrets, whose recommendations were taken into consideration in the law,
which has entered into force. After drawing up the draft law it was discussed with foreign experts and
non-governmental organisations. They submitted written recommendations to the Committee.
According to the information provided by the Regional Policy and Self-government Committee, in the
reporting period the Committee has applied to the non-governmental organisations interested in this area,
scientists, experts and area specialists for the opinions and recommendations on the issues related to the
Draft Law on the Development of Mountainous Regions of Georgia, among which about 30 non-governmental organisations and 60 experts were directly involved in the process of working on the preliminary
initiative versions of the draft law. Three meetings were held between the representatives of the society,
interested in the problems of mountainous regions, the Chair of the Committee on this issue and the

67

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Committee members at the National Academy of Sciences of Georgia. In all 37 comments, proposals and
recommendations were submitted to the Committee regarding that issue, which were taken into consideration
in the final version of the law.
According to information provided by the Legal Issues Committee, they had cooperated with the National
Academy of Sciences of Georgia and experts from the Tinatin Tsereteli State and Law Institute. On the basis
of their engagement, the Committee prepared the Draft Law on Amendments to the Criminal Code of Georgia
The Healthcare and Social Issues Committee stated that the experts of the area were invited to the Committee for the purpose of carrying out legal drafting process, preparing conceptual documents and carrying out
financial and budgetary monitoring effectively. The Committee has applied to international non-governmental
organisations and experts for the opinions and recommendations in the process of discussing the Law on
Control of Tuberculosis and the related draft laws, the Law on Making Amendments to the Law of Georgia
on State Compensations and State Academic Scholarships, the Law on Making Amendments to the Law of
Georgia on Patients Rights and the Law on Making Amendments to the Law of Georgia on HIV Infection.
However, the information provided by the Committee does not specify certain organisations and experts that
were involved in the process.
Other Committees did not take this opportunity.

11.6 REPRESENTATION OF THE LEGAL ISSUES

COMMITTEE AT THE CONSTITUTIONAL COURT
In the reporting period, the representation was made at 20 proceedings of the main court hearing at the
Constitutional Court of 14 constitutional claims and 4 constitutional submissions, 2 constitutional claims (592,
630) and 2 constitutional submissions (608, 609) out of which were completely granted, one constitutional
claim (646) was granted partially, regarding the other claims and submissions (550, 591, 594, 596, 600, 623,
631,636, 642, 633, 634) the Constitutional Court has not made a final decision yet, and regarding two claims
(625, 640) the main hearing has not been completed yet. The representation was also made in 19 preliminary
hearing for 14 constitutional claims, out of which the Court accepted 9 claims for main hearing, rejected 4
claims for main hearing with a court decision and has not made the record/ruling regarding one claim.

Decisions made by the Constitutional Court in 2015

In 2015 the Constitutional Court of Georgia made decisions on 10 cases in which the defendant party
was the Parliament of Georgia. The Court completely granted 7 of the cases, partially granted 2 cases
and rejected 1 case.

Rulings made by the Constitutional Court in 2015, in which the defendant party was the Parlia-

ment of Georgia
In 2015 the Constitutional Court of Georgia made 20 rulings, in which the defendant party was the Parliament of Georgia. In 3 cases out of the above mentioned the proceedings were terminated due to the
change of the disputed norm and in 6 cases the proceedings were terminated upon the request of the
claimant. Oral hearing was held regarding one case with the participation of the Parliament and in the
other cases without the participation of the Parliament; the cases were not accepted for main hearing.

Records made by the Constitutional Court of Georgia in 2015, in which the defendant party was

the Parliament of Georgia

In 2015 the Constitutional Court of Georgia made 25 records, in which the defendant party was the Parliament of Georgia. The preliminary hearing was held by oral hearing on 11 cases with the participation
of the Parliament of Georgia.

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SPRING, FALL AND EXTRAORDINARY SESSIONS

11.7 ACTIVITIES OF THE COMMITTEE ON EUROPEAN INTEGRATION (MONITORING

OF ASSOCIATION AGREEMENT ON THE ONE HAND BETWEEN THE EUROPEAN
UNION AND THE EUROPEAN ATOMIC ENERGY COMMUNITY AND ITS MEMBER
STATES AND ON THE OTHER HAND GEORGIA)
In 2015 the Committee analyzed about 15 draft laws for determining their compliance with the Association
Agreement or international agreements. The comments and opinions submitted to the Committee were transferred to the initiators and leading Committees, although the Committee has not provided the information on
the specific draft laws which were analyzed.

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ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

CHAPTER

12

ACTIVITIES OF THE BUREAUS OF

MAJORITARIAN MEMBERS OF
PARLIAMENT

Transparency International Georgia inquired the activities of the bureaus of the majoritarian Members of
Parliament. Under the current legislation, local bureaus of the Members of Parliament elected through the
majoritarian electoral system are established for the purpose of organisation of work with the voters, participation of the MP in the activities of the state authorities and respective local self-government bodies and in
the local decision-making process. The expenses related to the activities of the bureaus are covered by the
budget of the Parliament. The activities of the bureaus of each majoritarian MP are financed by GEL 5000
on a monthly basis.
In the process of examination of these activities in 2015 as well as in the previous reporting periods, there
were problems in obtaining the contact information of the bureaus. The information on the personal web-sites
of the majoritarian MPs (which are linked with the web-site of the Parliament) is not updated. In certain cases
the contact information of the bureaus, the addresses and telephone numbers are not correct. The members
of Transparency International Georgia were able to obtain information through personal connections. In such
case, the issue how successful is the attempt of the citizens to communicate with the majoritarian MPs is
still under question.
Transparency International Georgia actively cooperates with the bureaus of the majoritarian MPs. In 2015
the trainings were delivered to the staff members of the bureaus on the topic: budgetary system of Georgia
and budgetary monitoring of the Parliament state and local budgets: budget planning and execution. The
training was attended by about 60 employees of the bureaus of the majoritarian MPs.
Transparency International Georgia sent some questions to the bureaus of the majoritarian MPs. The questions concerned the activities of the bureaus and the communication with the citizens. The responses to our
letters were provided by 47 bureaus. In most cases the responses were late. The questions were as follows:

70

How many citizens addressed the bureaus (in writing, verbally) during 2015 spring and autumn
sessions and mainly which problems were identified;
How many public meetings were held between the bureau of the majoritarian MP and/or the majoritarian MP and the citizens in the reporting period, where were the meetings held and which
issues were discussed;
Did the bureau of the majoritarian MP conduct any survey, research, analysis for identifying the
needs of the people and which problems were identified;
What kind of communication did the bureau have with local self-government bodies and how
intensive was that communication; how were the problems of the people emphasized before the
local authorities;
The information on the expenditure by the bureau of the budgetary funds allocated for the bureau;
Whether the information bulletin was published (on the web-site or in a printed form) by the
bureau of the majoritarian MP or not, which issues were discussed in the bulletin and how was
the population familiarized with the bulletin.

SPRING, FALL AND EXTRAORDINARY SESSIONS

Results of the public opinion survey on the activities of the majoritarian Members of Parliament
Transparency International Georgia inquired whether the citizens of Georgia know who is the majoritarian
MP from their district, how they evaluate the activities of the majoritarian MPs and whether they agree with
the abolition of election of the Members of Parliament through majoritarian electoral system or not.

Diagram 19. Public opinion poll results on Majoritarian MPs

WHO IS PRESENTLY THE MAJORITARIAN MP OF YOUR DISTRICT? BY SETTLEMENT TYPE

Respondent knows majoritarian correctly

Respondent knows majoritarian incorrectly
DK/RA

100
90
80

75

70
60

59

58

50
40

33

30
20
10

10

15

28
13

0
Capital

Urban settlement

Rural settlement

71

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Diagram 20. Public opinion poll results on the activities of the Majoritarian MPs
HOW DO YOU EVALUATE THE WORK OF YOUR MAJORITARIAN? BY SETTLEMENT TYPE

Definetely positively

More or less positively

Definetely negatively

more or less negatively

DK/RA

100
90
80
70
60
50

49

48

40

40
30
10
0

25

24

20

18

13 12

2
Capital

16

Urban

21
10
Rural

Diagram 21. Public opinion poll results on the termination of Majoritarian system
PRESENTLY MAJORITARIAN MPS COMPRISE HALF OF TOTAL COMPOSITION OF THE PARLIAMENT.
AN ARGUMENT HAS BEEN MADE THAT THE MAJORITARIAN SYSTEM SHOULD BE DISCARDED
IN THE NEXT PARLIAMENTARY ELECTIONS, DO YOU AGREE WITH THIS POINT OF VIEW OR NOT?
BY SETTLEMENT TYPE
Completely agree

Rather agree than disagree

Rather disagree than agree

Completely disagree

It makes no difference to me

DK/RA

100
90
80
70
60
50
40
30
20
10

23
12 12 11

22 20

20

18
13 11 15

23

26

19

21
13
10 11

0
Capital

72

Urban settlement

Rural settlement

SPRING, FALL AND EXTRAORDINARY SESSIONS

12.1 APPLICATION AND PROBLEMS OF THE CITIZENS

Regarding this issue, unlike the report of the previous year, we requested information from the bureaus on the
application of citizens, which was appropriately officially registered, because we cannot check the provided
information. Unfortunately, in most cases the bureaus evaded that question and did not specify whether the
number of the applications was officially registered or not, which is included in the table of the bureau. It should
also be noted again that the figures are provided by the bureaus, which were referred to. It again emphasizes
the existing problem and the necessity of its resolution. The bureaus must ensure proper registration of the
applications of the citizens.
The data of the registered verbal application, as provided by the Bureaus, is as follows:

Ioseb Jachvliani - 1258

Zviad Kvachantiradze - 1200
Zurab Abashidze - 786
Shota Khabareli - 755
Eka Beselia - 650

The data of the registered written application, as provided by the Bureaus, is as follows:

Ioseb Jachvliani - 405

Shota Khabareli - 394
Guram Misabishvili - 349
Pati Khalvashi - 265
Shalva Shavgulidze - 194

12.2 PROBLEMS OF VOTERS AND THE SURVEY RESULTS

It is very important for the activities of the majoritarian Members of Parliament that they appropriately identify
the problems and needs of the voters. Therefore, the analysis of identification of the problems of population
is very important for effective functioning of the bureaus. For that purpose the survey of population (or its
specific groups) may be carried out, the applications of the citizens and the results of the public meetings
may be examined and the existing problems may be marked out.
For effective exercise of their powers by the majoritarian Members of Parliament it is an essential component
to be aware of the problems of the population. As a result of the analysis of the provided information the
bureaus of 25 majoritarian MPs specify that they have conducted some type of survey, although in certain
cases it is not clear how did they carry out the surveys and what were the results of the surveys.
Similarly to the previous year, this year the population specifies the same problems, this information is based
on the information obtained from the bureaus. The needs are as follows:

unemployment,
utility and infrastructure issues (water, gas, electricity, roads),
damages incurred by natural disasters and the dilapidated buildings,
problems related to legalisation of property,
medical needs,
resettlement of internally displaced persons

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ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

12.3 PUBLIC MEETINGS

This year the bureaus have not specified the exact number of the public meetings either; the inaccurate data
were provided and, except for certain cases, it is not specified specifically when, where and regarding which
issues were the meetings held with the voters.
The number of public meetings of the MPs with the voters (does not include meetings of only the representatives of the bureaus):
Mirian Tsiklauri - 85
Malkhaz Tsereteli - 73
Gela Samkharauli - 67
Leri Khabelovi - 57
Dimitri Khundadze - 44

12.4 BUREAUS AND LOCAL SELF-GOVERNMENT BODIES

According to the responses provided by the bureaus of the majoritarian MPs, the majoritarian MPs of the
parliamentary minority have some problems in the relations with the local self-government bodies. Positive
results are obtained only in rare cases and even then the responses are very late.
More specifically, the bureaus refer to different problems, namely as follows: no reaction, no cooperation, late
responses. The following bureaus specify problems in the relations:

The bureau of the Dedoplistskaro majoritarian Member of Parliament Zaza Kedelashvili;

The bureau of the Batumi majoritarian Member of Parliament Murman Dumbadze;
The bureau of the Kharagauli majoritarian Member of Parliament Nodar Ebanoidze;
The bureau of the Tsalenjikha majoritarian Member of Parliament Levan Kardava.
The bureau of the Samgori majoritarian Member of Parliament Zurab Abashidze
The bureau of the Krtsanisi majoritarian Member of Parliament Shota Khabareli

12.5 COST ESTIMATION OF THE MAJORITARIAN BUREAUS

Under Article 19 of the Rules of Procedure of the Parliament of Georgia, the expenses related to the activities
of the bureaus of the majoritarian Members of Parliament shall be covered from the budget of the Parliament. Once a year a majoritarian MP is obliged to submit to the Procedural Issues and Rules Committee the
information on the expenses incurred by the bureau of the majoritarian MP, which should specify the initial
balance, the funds allocated from the budget, the amount spent from the budget and the remaining balance.
We requested information from the bureaus on the detailed cost estimation of the bureaus of the majoritarian
MPs within GEL 5000, allocated from the budget.
The requested information was not provided by the following four bureaus out of the 47 submitted responses:
Bureau of Zurab Abashidze
Bureau of Akaki Bobokhidze,
Bureau of Gela Gelashvili,
Bureau of Zurab Zviadauri.
It should also be noted that the responses provided by 10 bureaus are incomplete and in certain cases the
reference is made to other web-sites where such information may be obtained. The publication of information on the web-site does not exempt a civil servant from the obligation to provide information.

For example, the Majoritarian Bureau of Sachkeri of Manana Kobakhidze did not send us specific information on the expenditures, indicating that this information was available on the State Procurement Agency website
34

74

SPRING, FALL AND EXTRAORDINARY SESSIONS

12.6 INFORMING THE POPULATION

We asked the bureaus whether they used the bulletins for increasing peoples awareness in the reporting
period or not. The bulletin is used only in two cases (the bureau of Nodar Ebanoidze, the bureau of Malkhaz
Tsereteli). Population is informed on the activities carried out by the MP by other means as well, namely as
follows:

The bureau of Eka Beselia provided the population with the leaflets containing the above information;
The bureau of Mirian Tsiklauri publishes a newspaper Khevis matsne;
The bureau of Zviad Kvachantiradze published information in the local newspaper Alioni;
The bureau of Teimuraz Chkuaseli published an information bulletin in a form of the newspaper;
The bureau of Gocha Enukidze published information in the local newspapers Ambrolauris Moambe,
Rachvelebi.

It is also important how systematically the population is informed on the activities of the majoritarian MPs.
Based on the information provided to us by the bureaus they use social networks (Goderdzi Bukia, Shalva
Shavgulidze, Dimitri Khundadze, Manana Kobakhidze, Zviad Dzidziguri, Eka Beselia, Davit Onoprishvili, Gela
Samkharauli, Gocha Enukidze, Tamar Khidasheli, Giorgi Kakhiani).

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ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Table 3. The activities of the majoritarian MPs

Number of
written
applies from the
citizens

Majoritarian
deputy of
Parliament

Status

Region

Answer to the
letter

Abashidze Zurab

Faction "Free
Democrats"

Samgori

Yes

Akhalaia Rolandi

Minority

Zugdidi

No

Beselia Eka

Majority

Poti

Yes

Bezhuashvili Davit

Indepentent deputy of Parliament

Tetritskaro

No

Bobokhidze Akaki

Minority

Tskaltubo

Yes

Accounted: 10

Bolkvadze Anzor

Majority

Khulo

Yes

Accounted: 78

Bukia Goderdzi

Majority

Khobi

Yes

Accounted: 47

Butskhrikidze
Kakha

Minority

Terjola

No

Chapidze Eliso

Majority

Tkibuli

No

Chavchanidze
Daviti

Minority

Khoni

No

Chilingarashvili
Zurabi

Minority

Adigeni

No

Chitashvili Vazha

Minority

Akhaltsikhe

No

Chkhaidze
Teimurazi

Majority

Lanchkhuti

Yes

76

Total number of
applies

Accounted: 136

Resgistered: 160

Accounted: 71

SPRING, FALL AND EXTRAORDINARY SESSIONS

Number of oral
applies from the
citizens

Public meetings

Research to solve
the problems

Collaboration with
local selfgovernment

Information about
the expenses of the
bureau

Accounted: 786

29

Yes

No

No

Accounted: 650

Deputy: 42, Bureau

in working hours: 18

Yes

Yes

Yes

Unaccounted: 27

12

No

Yes

No

Accounted: 272

No specific number
indicated

Yes

Yes

Yes

Accounted: 60

27

Yes

Yes

Incomplete

Accounted: 150

No

Yes

Yes

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ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Number of
written
applies from the
citizens

Majoritarian
deputy of
Parliament

Status

Region

Answer to the
letter

Chkuaseli
Teimurazi

Majority

Chokhatauri

Yes

Dartsmelidze
Daviti

Minority

Abasha

No

Dolidze Viktori

Other

Chughureti

Yes

Registered: 92

Dumbadze Murman

Indepentent
deputy of
Parliament

Batumi

Yes

Accounted: 48

Total number of
applies

Registered: 12

Dzidziguri Zviad

Majority

Rustavi

Yes

No info if accounted or not:

572

Ebanoidze Nodar

Majority

Kharagauli

Yes

Accounted: 64

Enukidze Gocha

Majority

Ambrolauri

Yes

Accounted: 53

Gelashvili Gela

Majority

Sighnaghi

Yes

No info if accounted or not:

107

Gelashvili Valeri

Majority

Khashuri

Yes

Unaccounted:
203

Ghviniashvili
Giorgi

Minority

Gurjaani

No

Gozalishvili Giorgi

Majority

Lagodekhi

Yes

Accounted: 15

Jachvliani Ioseb

Majority

Gldani

Yes

Registered: 405

Japaridze Tamaz

Majority

Oni

No

78

SPRING, FALL AND EXTRAORDINARY SESSIONS

Number of oral
applies from the
citizens

Public meetings

Research to solve
the problems

Collaboration with
local selfgovernment

Information about
the expenses of the
bureau

Registered: 204

No specific number
indicated

Yes

Yes

Yes

Unaccounted: 406

Public 17, Bureau in

working hours: 35

Yes

Yes

Yes

No info accounted or
not: 540

Yes

Yes

No

No specific number
indicated

20

No

Yes

Incomplete

No info accounted or
not: 240

No specific number
indicated

Yes

Yes (incomplete
reaction)

Yes

No specific number
indicated

Deputy and Bureau

in working hours:
almost 30

No

Yes (incomplete
reaction)

Yes

Not indicated

No

Yes

No

Unaccounted: 1000

No specific number
indicated

No

Yes

Yes

No specific number
indicated

15

No

Yes

Incompete

Registered: 1258,
Non-Registered:
2700

5 public meetings,
Bureau in working
hours: 23

Yes

Yes

Yes

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ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Number of
written
applies from the
citizens

Majoritarian
deputy of
Parliament

Status

Region

Answer to the
letter

Japaridze Viktori

Majority

Mestia

No

Kakhiani Giorgi

Majority

Samtredia

Yes

Kantaria
Aleksandre

Majority

Isani

No

Kardava Levan

Minority

Tsalendjikha

Yes

Kavtaradze Giorgi

Majority

Zestafoni

No

Kedelashvili Zaza

Minority

Dedoplitskaro

Yes

No specific
number
indicated

Khabareli Shota

Majority

Krtsanisi

Yes

Accounted: 394

Khabelovi Leri

Majority

Kareli

Yes

Khabuliani Sergo

Majority

Tsageri

Yes

Registered: 115

Khalvashi Pati

Majority

Kobuleti

Yes

Registered: 265

Khalvashi
Rostomi

Majority

Khelvachauri

Yes

Unaccounted:
607

Khidasheli Tamar
(Since 2015)

Majority

Sagaredjo

Yes

Indicates 25

Accounted: 38

Yes

Unaccounted:
771

No specific
number
indicated

Khmaladze
Vakhtangi
80

Majority

Didube

Total number of
applies

Registered: 22

No info if
accounted or
not: 85

SPRING, FALL AND EXTRAORDINARY SESSIONS

Number of oral
applies from the
citizens

Public meetings

Research to solve
the problems

Collaboration with
local selfgovernment

Information about the

expenses of the
bureau

Unaccounted: 130

41

No

Yes

Incomplete

No info accounted or
not: 43

No number indicated

No

Yes (Late answers)

Yes

No specific number
indicated

No specific number
indicated

No

No (Not cooperating)

Incomplete

Accounted: 755;
Unaccounted: almost
2200

Deputy and bureau

in
working hours: 92

Yes

Not enough

Yes

57

No

Yes

Yes

Non-Registered: 10

No specific number
indicated

Yes

Yes

Incomplete

Accounted: 474

No specific number
indicated

Yes

Yes

Yes

Unaccounted: 1321

Not indicated

Yes

Yes

Yes

Unaccounted: 130,
Accounted: 93

No

Yes

Incomplete/
Including 2016

No specific number
indicated

No specific number
indicated

No

Yes

Yes
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ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Majoritarian
deputy of
Parliament

Status

Region

Answer to the
letter

Total number of
applies

Number of
written
applies from the
citizens

Khundadze Dimitri

Majority

Mtskheta

Yes

No info if
accounted or
not: 41

Kiknavelidze
Paata

Majority

Baghdati

Yes

No info
accounted or
not: 98

Kobakhidze
Manana

Majority

Sachkhere

Yes

No info
registered on
not: 173

Kordzaia Tamar

Majority

Nadzaladevi

Yes

Accounted: 131

Kutsnashvili
Zakaria

Majority

Tianeti

No

Kvachantiradze
Zviad

Majority

Ozurgeti

Yes

Registered: 193

Lemonjava
Vakhtang

Minority

Chkhorotsku

Yes

No info
accounted or
not: 17

Lezhava Paata

Minority

Vani

Yes

No info
accounted or
not: 11

Liparteliani Gogi

Majority

Lentekhi

Yes

Unaccounted: 30

Londaridze Tarieli

Minority

Aspindza

no

Megrelidze Omar

Minority

Shuakhevi

Yes

No info if
accounted or
not: 7

Misabishvili
Gurami

Majority

Senaki

Yes

Accounted: 349

Mkoiani Enzeli

Majority

Ninotsminda

No

82

SPRING, FALL AND EXTRAORDINARY SESSIONS

Number of oral
applies from the
citizens

Public meetings

Research to solve
the problems

Collaboration with
local selfgovernment

Information about
the expenses of the
bureau

No specific number
indicated

44

Yes

Yes

Yes

No info accounted or
not: 167

19

Yes

Yes

Yes

No specific number
indicated

No specific number
indicated

No

Yes

Incomplete/
Indicating spa.ge

Unaccounted: 94

12

Yes

Yes

Yes

Registered: 1200

Yes

Yes

Yes

No info accounted or
not: 21

No specific number
indicated

Yes

Yes

Yes

No info accounted or
not: 42

No

Yes

Yes

Unaccounted: almost
50

No

Yes

Yes

No info accounted or
not: 85

Bereau and deputy:

56

No

Yes

Incomplete

Accounted: 352

158 (not indicated

bureau or public
meetings)

Yes

Yes

Yes

83

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Number of
written
applies from the
citizens

Majoritarian
deputy of
Parliament

Status

Region

Answer to the
letter

Nakopia Koba

Minority

Bolnisi

No

Okriashvili
Kakhaberi

Majority

Dmanisi

Yes

Onoprishvili Davit

Indepentent
deputy of
Parliament

Kaspi

Yes

Accounted: 95

Papuashvili Zaza

Majority

Mtatsminda

Yes

Non-Registered:
16

Peikrishvili Giorgi

Majority

Gardabani

No

Petrosiani Samvel

Minority

Akhalkalaki

Yes

Popkhadze
Gedevan

Majority

Borjomi

No

Samkharauli Gela

Majority

Telavi

Yes

Sanikidze Gubaz

Majority

Kutaisi

No

Shavgulidze
Shalva

Other

Vake

Yes

Accounted: 194

Shavlokhasvili
Revaz

Majority

Tsalka

Yes

Unaccounted:
133

Shervashidze
Iasha

Majority

Keda

No

Suleimanovi Azer

Minority

Marneuli

No

84

Total number of
applies

No specific
number
indicated

Accounted: 174

SPRING, FALL AND EXTRAORDINARY SESSIONS

Number of oral
applies from the
citizens

Public meetings

Research to solve
the problems

Collaboration with
local selfgovernment

Information about
the expenses of the
bureau

Unaccounted: 250,
Accounted: 150

Bureau in working hours:

almost 100, almost 40 in
public villages

Yes

Yes

Yes

Non-Registered: 33

No

Yes

Yes

No specific Number
indicated

42

No

Yes

Yes

Non-Registered:
almost 300

67

Yes

Yes

Yes

Unaccounted: 30,
Accounted: 55

Bureau in working hours:

8, public 14

Yes

Yes

Yes

Unaccounted:
almost 80.

Almost 20

No

Yes

Incomplete

85

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Number of
written
applies from the
citizens

Majoritarian
deputy of
Parliament

Status

Region

Answer to the
letter

Tripolski Erekle

Majority

Dusheti

Yes

Registered: 49

Tsereteli Malkhaz

Majority

Tchiatura

Yes

Accounted: 112

Total number of
applies

Tsiklauri Miriani

Majority

Stefantsminda

Yes

No info if
accounted or
not: 20

Usufashvili Davit

Majority

Saburtalo

Yes

Registered: 90

Vakhtangishvili
Malkhaz

Majority

Gori

No

Verulashvili
Marika

Majority

Kvareli

No

Zviadauri Zurab

Majority

Akhmeta

Yes

86

Unaccounted:
almost 500

No specific
number
indicated

SPRING, FALL AND EXTRAORDINARY SESSIONS

Number of oral
applies from the
citizens

Public meetings

Research to solve
the problems

Collaboration with
local selfgovernment

Information about
the expenses of the
bureau

Accounted: 387

No

Yes

Yes

Accounted: 564

73

No

Yes

Yes

No info accounted or
not: 200

85

Yes

Yes

Yes

No info accounted or
not: 145

Yes

Yes

Yes

No specific number
indicated

No specific number
indicated

Yes

Yes

No

87

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

CHAPTER

13

CONNECTION OF THE MEMBERS OF

PARLIAMENT WITH BUSINESS AND
UNDECLARED ENTREPRENEURIAL
ACTIVITIES

13.1 CONNECTION OF THE MEMBERS OF PARLIAMENT WITH BUSINESS

Under the legislation, a Member of Parliament has the right to own shares or stocks of the company, but he/
she may not carry out entrepreneurial activities (may not be a director, employee of a company). A Member
of Parliament is obliged to terminate incompatible activities with his/her status (including entrepreneurial
activities) upon the commencement of term of his/her office and submit the certificate thereof to the Procedural Issues and Rules Committee within 7 days. As of March 2016, 29 MPs own business assets. Also,
family members of 24 MPs manage and/or own various companies. This figure is reduced by 1 in
comparison to the figure of 2014.
According to the data of the Public Registry, only one Member of Parliament, Paata Lezhava, is registered
as the director of a company (Puntusha LTD). The data of that company have not been updated since 1995,
which presumably indicates that the company has not been operating for years. In case of another Member
of Parliament, Zviad Kvachantiradze, the data of the Public Registry specify that his request on resignation
from the position of the director of Golden Plis Group is suspended.
Based on the information provided by the Procedural Issues and Rules Committee, in 2012-2015 there
were 69 cases of transfer of the title on their own shares in the business entities by the Members of
Parliament and in 10 cases the Members of Parliament have resigned from the position of a director
of a business entity.
Most of the MPs specify that their income from the entrepreneurial activities is GEL 0. Only seven MPs specify
their income from the entrepreneurial activities.
The following MPs have specified the highest incomes:

88

Kakhaber Okriashvili (approximately GEL 4.7 million),

Gocha Enukidze (approximately GEL 4.5 million),
Sergo Khabuliani (GEL 633,205),
Gogi Topadze (GEL 611,052)
Giorgi Kakhiani (GEL 44500),
Giorgi Zhvania (GEL 25000),
Zaza Kedelashvili (GEL 16586)

SPRING, FALL AND EXTRAORDINARY SESSIONS

13.2 UNDECLARED ENTREPRENEURIAL ACTIVITIES

OF THE MEMBERS OF PARLIAMENT
The obligation of the public officials to declare their property is an effective mechanism to identify corruption
and possible conflict of interests. The data on the share participation of public officials in various businesses
is especially important from the obtained information. Identification of the public officials who own shares/
stocks in the companies may facilitate detecting the conflict of interests and avoiding corruption.
Transparency International Georgia compared asset declarations, filled in by the Members of Parliament, with
the information on their participation in various companies, published on the web-site of the Public Registry.
The research showed that some Members of Parliament have not declared ownership of commercial legal
persons (their own shares) and participation in their management. Transparency International Georgia has
many times brought similar issues to the attention of the Parliament.
Giorgi Zhvania (Georgian Dream)
According to the asset declaration, completed in 2014, Giorgi Zhvania is a co-owner of three companies:
BOSSNER LTD, BMC LTD and Tibaneli Gbmh, which are registered in Germany and produce wine. According
to the information published on the web-site of the Public Registry Giorgi Zhvania is a shareholder of one
more company Apolo LTD, however the data of that company have not been updated on the web-site of the
Public Registry since 1998, which may mean that the company is no longer functioning.
Tamaz Shioshvili (Free Democrats)
Tamaz Shioshvili is the owner of Spanish Clay LTD (35%) and Memorex LTD (30%). This has not been included in any asset declaration since 2012. In addition, he is the owner of Logics LTD, however the data on this
company have not been updated for several years, which may mean that the company is no longer functioning.
Iasha Shervashidze (Faction Independent Majoritarians - For Powerful Regions)
According to the information published on the web-site of the Public registry, Iasha Shervashidze is the
shareholder of three companies: Gum-Bapa LTD (51%), Stararji LTD (5%) and Gumbapa LTD (the data have
not been updated since 2007). However, neither of the above-stated companies is included in 2015 asset
declaration of the Member of Parliament.
Gogi Liparteliani (majoritarian MP of Lentekhi, Georgian Dream - Independent Majoritarian Members of
Parliament for Strong Regions)
According to the information published on the web-site of the Public registry Gogi Liparteliani is a shareholder
of Tirpon HPP LTD. The MP has not included this information in his 2015 asset declaration. However the data
on these two companies, published on the web-site of the Public Registry, have not been updated for several
years. Gogi Liparteliani has not declared the participation of his spouse, Nazi Liparteliani in more than 15
various companies.
Zaza Kedelashvili (majoritarian MP of Dedoplistskaro, the United National Movement)
According to the information published on the web-site of the Public registry Zaza Kedelashvili owns 25% of
Champion LTD, which is not included in his 2015 asset declaration.
Paata Lezhava (majoritarian MP of Vani, the United National Movement)
Paata Lezhava is the shareholder of two companies: Puntusha LTD and LG and Compnay Pirosmani LTD,
however the data of neither of those companies have been updated since the 90s. At the same time, he is the
director of Puntusha LTD. Paata Lezhavas spouse Nino Laskhishvili owns 80% of Fashion Style LTD, which
is not included in 2015 asset declaration. The data of this company have not been updated for several years.
Gia Zhorzholiani (Georgian Dream)
Gia Zhorzholianis spouse Tinatin Zaldastanishvili is the director of Georgian branch of the company LT
GLOBAL SERVICES LLC, which is not included in 2015 asset declaration of the MP. However the connections
with other companies are specified in the asset declaration.

89

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Viktor Japaridze (majoritarian MP of Mestia, Georgian Dream)

According to 2014 asset declaration Viktor Japaridzes spouse Natia Khvistani is a shareholder of the company
Ktsia-94 LTD, however according to the information published on the web-site of the Public Registry Natia
Khvistani has shares in two other companies, namely: Seti LTD (50%) and Tirpark Marneuli LTD (17%). Viktor
Japaridze has not filled in the asset declaration since 2014.
Zakaria Kutsnashvili (majoritarian MP of Tianeti, Georgian Dream)
Zakaria Kutsnashvilis father, Omar Kutsnashvili is the shareholder of several companies, which is included
in 2016 asset declaration of the Member of Parliament. However, Omar Kutsnashvilis connection with Super
torpi LTD and KMB LTD is not specified in the asset declaration. According to the information published on
the web-site of the Public Registry Omar Kutsnashvili owns 10% of Super torpi LTD and 20% of KMB LTD.
He is also the director of Georgian Azerbaijani development company Tbil-Baku.
Koba Nakopia (the United National Movement)
The Member of Parliament Koba Nakopia has not specified in his 2015 asset declaration that his son Nikoloz
Nakopia is a shareholder of Innovation Group Georgia LTD. In addition, the declaration states that Nikoloz
Nakopia is a shareholder of Gold Invest LTD, but according to the information of the Public Registry the
shareholder of this company is Koba Nakopia himself.
Paata Kiknavelidze (Georgian Dream Industrials)
According to the data published on the web-site of the Public Registry Paata Kiknavelidzes brother Andro
Kiknavelidze is a shareholder of Iberia-47 LTD, which is not specified in 2014 asset declaration of the Member
of Parliament. Paata Kiknavelidze himself is the shareholder of Madli LTD, which is not specified in his 2015
asset declaration. The information on that company has not been updated since 2003, which may mean that
the company is no longer functioning.
Levan Tarkhnishvili (the United National Movement)
Levan Tarkhnishvili has specified in his 2015 asset declaration that his spouse Ana Tarkhnishvili is the shareholder of two companies BCG Reseach LTD and Guri LTD. According to the data of the Public Registry, Ana
Tarkhnishvili is the shareholder and director of one more company - BCG Monitoring.
Among the undeclared companies there are some companies, on which the information has not been
updated for years on the web-site of the Public Registry, which may mean that those companies are
no longer functioning. However, they exist officially and it does not exempt the Members of Parliament
from the obligation to include in their asset declarations the ownership of shares in those companies
and/or resign from the management of those companies.

90

SPRING, FALL AND EXTRAORDINARY SESSIONS

91

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Table 4. Connection of the Members of Parliament with business

Member of the
Parliament

Entity
(Parliamentary)

Company

Connection to the company

Akaki
Bobokhidze

Minority

LLC Orioni

50% of shares

LLC Dia Alaverdi

100% of shares

LLC Dia Group

33.33% of shares

LLC Duta & F

22% of shares

LLC Vera-2011

30% of shares

JSC Kazbegi

Shareholder, according to the power of

attorney- Zurab Tsagareishvili

LLC Kazbegi-Tobacco

0.7% of shares, according to the power of

attorney- Zurab Tsagareishvili

LLC Begheli

33.34% of shares, Imeda Kakhiani managing the

shares

LLC Global Brends

25% of shares, Imeda Kakhiani managing the

shares

LLC "Ibercompany"

100% of shares, Beka Kikaleishvili managing the

shares

LLC "Bani"

100% of shares, Beka Kikaleishvili managing the

shares

LLC Ibercompany
Petrolium

100% of shares, Beka Kikaleishvili managing the

shares

LLC "Jeotronic 2007"

80% of shares,Tariel Khechikashvili managing the

shares

LLC "City Sport"

17.5%of shares,Tariel Khechikashvili

managing the shares

LLC "Ibercompany
Holdings"

80% of shares, Beka Kikaleishvili managing the

shares

LLC "Sport Club

Olympus"

18% of shares,Tariel Khechikashvili managing the

shares

LLC " Global Trading

Company"

33.4% of shares, Beka Kikaleishvili managing the

shares

Gela
Samkharauli

Giorgi
Tsagareishvili

Giorgi Kakhiani

Majority

Majority

Majority

Gocha Enukidze

92

SPRING, FALL AND EXTRAORDINARY SESSIONS

Declired Income

According to the
declaration of 2012

Does not own any

company

The same

The same

No amendments after 2010

The same

No amendments after 2011

The same

According to the property declaration

The same

The same

44500

The same

The same

Comments

Ibercompany Oil and Ibercompany Irao were merged with LLC

Ibercompany. Summerized income of all three companies is indicated.

4317893
0
246315

Aliented on March 27, 2015.

Aliented on March 25, 2015.

0
0

Aliented on March 25, 2015.

0
0

93

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Member of the
Parliament

Entity
(Parliamentary)

Gocha Enukidze

Giorgi Jvania

Goderdzi Bukia

Giorgi Topadze

94

Company

Connection to the company

LLC "Ita Service"

25% of shares,Tariel Khechikashvili

managing the shares

LLC " Academic Egnate Pipia

Tbilisi Medical Institute"

Partner

LLC Galaktioni 3

50% of shares, Beka Kikaleishvili

managing the shares

LLC BMC

20% of shares

Tibaneli GmbH (Germany)

Partner

LLC BOSSNER

100% of shares

LLC Apolo

Partner

LLC System Net

3.6% of shares, Guram Akhalaia

managing the shares

LLC " Tophadze and Company"

34% of shares

LLC " Kazbegi 1881"

24% of shares

LLC " Truso"

30% of shares, Irakli Tophadze

managing the shares

LLC " Kazbegi- Phshaveli"

10% of shares

LLC " Resort Bakuriani"

45% of Shares

LLC "Trialeti"

80% of shares

LLC "Iori Groves"

17%of shares

LLC "Kazbegi-Bakuriani"

99%of shares

LLC "CALWE"

20% of shares

LLC Kartu-Universal

24.5% of shares, Irakli Tophadze

managing the shares

LLC "Terjola 2007"

34%of shares

Majority

Majority

Majority

SPRING, FALL AND EXTRAORDINARY SESSIONS

Comments

Declired Income

According to the declaration of

2012

Aliented on March 25, 2015.

0
0
25000

The same

Wine Production

The same

No amendments after October 30, 2012

The same

Has not been renewed after 1998

The same
0

LLC MG Company does not

own share of LLC System Net

0
0
0
0
0
0
0
0
0
611052
0
95

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Member of the
Parliament

Giorgi Topadze

Entity
(Parliamentary)

Majority

Company

Connection to the company

LLC "Kazbegi Ice-Cream"

25%of shares

LLC "Phshaveli-Kazbegi"

20%of shares

LLC "Kazbegi Natali"

26%of shares

JSC Kazbegi

Shareholder (584608 shares)

LLC " Mountain-ski Club Kazbegi"

50%of shares

LLC Kazbegi-99

Shareolder, liquidation has started

LLC " Resaturant Kazbegi-Vere"

7% of shares, liquidation has started

LLC " Bar Kazbegi-Umbrellas"

Shareholder

LLC " Tsaraphi-98"

13% of shares

LLC Samgori

33.4%of shares

LLC Bakuriani Concrete

25 % of shares

LLC Vetpreparati

50% of shares, liquidation has started

LLC Tskhratskaro-2007

30% of shares, Irakli Tophadze

managing the shares

Eka Beselia

Majority

JLC Eka Beselia Law Company

Founder

Vakhtang
Khmaladze

Majority

LLC Tbilisi Arbitratian Chamber

35.7% of shares

CHEMEXIM INTERNATIONAL LTD

(Marshall Islands)

partner

KEMBLE TRADING LTD (Cyprus)

partner

LLC Khanda

100% of shares, Germane Kupreishvili

managing the shares

Davit
Bezhuashvili

Majority

Guram
Misabishvili

Majority

96

SPRING, FALL AND EXTRAORDINARY SESSIONS

Comments

Declired Income

According to the declaration of

2012

0
0
0
0
0
0
0
According to the property declaration

0
0
0
0
0
0
The same
0
0
0
0

97

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Member of the
Parliament

Entity
(Parliamentary)

Company

Connection to the company

Gogi Liparteliani

Minority

LLC Tiriphon-HPP

Shareholder

LLC zak

33.4% of shares, Kakha Kurtskhikidze

managing the shares

LLC zedazeni imereti

5% of shares, Giorgi Baratashvili

managing the shares

LLC Iberia Sakartvelo

15% of shares, Mamuka

Tsinamdzgvrishvili managing the shares

LLC Trans Experiment

5% of shares, Giorgi Baratashvili

managing the shares

LLC Chamion

25% of shares

LLC Migrants' Lawyer Bureau

55% of shares

LLC Lawyers for Repressed

ones

40% of shares

Q and Q Consulting

60% of shares

JSC Golden Fleas Group

Director

LLC Union Credit

25% of shares and Director

LLC Macros World Georgia

25% of shares and Director

SP Zviad Kvatchantiradze

Sole Proprietor

LLC Saamo

11%- of shares

LLC "Aguna"

27% of shares

LLC Samegobro

5% of shares

LLC Nugo

10.88% of shares

LLC Kazbegi-Natali

19%-of shares

Zaza Kedeashvili

Zakaria
Kutsnaishvili

Zviad
Kvatchantiradze

Zurab Tkemaladze

Tamaz Kacheishvili

98

Minority

Majority

Majority

Majority

Majority

SPRING, FALL AND EXTRAORDINARY SESSIONS

Comments

Declired Income

According to the declaration of

2012

Has not been renewed after 2001

0
12800
1206
2580
Has not been renewed after 2007
Liquidation has begun

Liquidation has begun

0
0

Registration Process for release has been

suspended

Aliented on January 2, 2016.

Aliented on January 29, 2016.

0
0
0
0
0
0

His doughter Irina Kacheishvili to be referred in the

declaration as shareholder

99

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Member of the
Parliament

Entity
(Parliamentary)

Company

Connection to the company

Tamaz Kacheishvili

Majority

LLC "Quality"

25%-of shares

Temur Maisuradze

Majority

LLC NEWINNOTECH

20% of shares, Nino Metreveli

managing the shares

LLC Memorex

30%-of shares

LLC Logix

25%-of shares

LLC Spanishclay

35% of shares

LLC Gum-Bapa

51%-of shares

Tamaz Shioshvili

Majority

Sole Proprietor
Iasha Shervashidze

Kakhaber
Okriashvili

100

Without Fraction

Majority

LLC "Gumbapa"

15%-of shares

LLC Star R G

5%-of shares

LLC PSP Pharm

100%- of shares, Vazha Okriashvili

managing the shares

LLC Alfa

100%- of shares, Vazha Okriashvili

managing the shares

JSC Electronica 94

Shareholder

LLC Mandarini

100%- of shares, Vazha Okriashvili

managing the shares

LLC PSP Insurance

100%- of shares, Vazha Okriashvili

managing the shares

LLC JCT Engineering

37.5% of shares, Vazha Okriashvili

managing the shares

LLC Patria Medica

100%- of shares, Vazha Okriashvili

managing the shares

LLC Aksa Medical

100%- of shares, Vazha Okriashvili

managing the shares

GMP Production

95%- of shares, Vazha Okriashvili

managing the shares

SPRING, FALL AND EXTRAORDINARY SESSIONS

Comments
His doughter Irina Kacheishvili to be referred in the
declaration as shareholder

Declired Income

According to the declaration of

2012

0
0

Has not been renewed after 2006

Has not been renewed after 2007

4700000
0
59433
0
0
0
0
0
0

101

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Member of the
Parliament

Kakhaber
Okriashvili

Levan Kardava

Paata Lezhava

Entity
(Parliamentary)

Company

Connection to the company

LLC Sunnymed

100%- of shares, Vazha Okriashvili

managing the shares

LLC PSP

59%- of shares, Vazha Okriashvili

managing the shares

LLC Geomed

25%- of shares, Vazha Okriashvili

managing the shares

LLC Margveti

partner

MD Group

100%- of shares, Maka Mania

managing the shares

Italian Motor Group

partner

Innovative Nano Technologies of

Georgia

20% of shares

Global Impex

Partner

Gruppo Via

100%- of shares, Maka Mania

managing the shares

Magana-2004

100% of shares

LLC Phuntusha

34% of shares and Director

LLC LG&GO "PIROSMANI"

20% of shares

LLC Delato Fitnes

33.3% of shares, Lasha Lezhava

managing the shares
14% of shares

Majority

Minority

Minority

Nodar
Ebanoidze

Majority

LLC "Compaudi"

Omar
Nishnianidze

Majority

SP Omar Nishnianidze

Paata
Kiknavelidze

Majority

LLC Madli

Shareholder

LLC Tsekuri

62.5%of shares, Beka Khabuliani

managing the shares

LLC Mshenebeli 2004

62.5%of shares, Beka Khabuliani

managing the shares

Sergo
Khabuliani

102

Majority

SPRING, FALL AND EXTRAORDINARY SESSIONS

Comments

Declired Income

According to the declaration of

2012

0
0
15790
According to the property declaration
0
According to the property declaration

0
0

According to the property declaration

0
0
0

Has not been renewed after 1995

Has not been renewed after 1999
0
0
Suspended
Has not been renewed after 2003
Last declaration has been filled in by 2014

633205
0

103

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Table 5. Connection of the Family Members of the Members of Parliament with business

Name and Surname

Connection to the member

of Parliament

Parliamentary entity of the member

Tinatin Zaldastanishvili

"Spouse of Gia Zhorzholiani"

Majority

Mariam Ghviniashvili

Daughter of Giorgi Ghviniashvili

Minority

Nazi Liparteliani

Spouse of Gogi Liparteliani

Majority

104

SPRING, FALL AND EXTRAORDINARY SESSIONS

Company

Connection to the company

Comments

LT GLOBAL SERVICES LLC's branch

in Georgia

Director

LLC Levon Travel

Director

LLC Legal Company GS&Barristers

50% of shares

LLC Speroza

15% of shares

LLC Biosphero+

20% of shares

LLC Gama+

10% of shares

LLC Gama+

21% of shares

LLC Trans Gas

22.92% of shares

LLC Euorstyle XXI

16.6% of shares

LLC Zugdidi 2010

29% of shares

LLC Olympy-XXI

50% of shares

Has not been renewed after 2007

LLC "Seti-1"

50% of shares

Has not been renewed after 2007

LLC Partner T $ G Company

15% of shares

LLC Aleksandra

18% of shares

Partner 2010

17% of shares

105

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Name and Surname

Connection to the member

of Parliament

Parliamentary entity of the member

Nazi Liparteliani

Spouse of Gogi Liparteliani

Majority

Marina Tophadze

Spouse of Giorgi Tophadze

Majority

Lili Bakradze

Mother of Davit Bakradze

Minority

Ekaterine Amaghlobeli

Spouse of Davit Lortkiphanidze

Majority

106

SPRING, FALL AND EXTRAORDINARY SESSIONS

Company

Connection to the company

LLC Roko

11% of shares

LLC Araoni 2010

20% of shares

LLC N Plus Service

17% of shares

LLC Rom Import 2010

25% of shares

Potpetroli

18% of shares

Partner Batumi

25% of shares

Marneuli Partner

20% of shares

Vazi

19% of shares

Ald

10% of shares

Gonio Partner

25% of shares

Koda Green Product

37% of shares

Squri 2016

15% of shares

Max-Service

17% of shares

Ekoil

20% of shares

LLC "Kazbegi-Tobacco"

1.4% of shares

Lili Bakradze - TBE

Sole Proprietor

LLC Solidort

30% of shares

LLC Davit Tatishvili Sports Medicine

and Reabilitation Centre

5% of shares

Comments

Registration Date May 25, 2016

107

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Name and Surname

Connection to the member

of Parliament

Parliamentary entity of the member

Karapet Mkoiani

Son of Enzel Mkoiani

Majority

Marina Zaqroshvili

Spouse of Vazha Chitashvili

Minority

Natia Khvistani

Spouse if Viktor Japharidze

Majority

Omar Kutsnaishvili

Father of Zakaria Kutsnaishvil

Majority

Thea Sanikidze

Spouse of Zakaria Kutsnashvili

Majority

Nikolozi Nakophia

Son of Koba Nakophia

Minority

108

SPRING, FALL AND EXTRAORDINARY SESSIONS

Company

Connection to the company

LLC Akhalgazi

50% of shares

LLC Karo

50% of shares and Director

LLC Stomatologist

7% of shares

LLC Qtsia-94

66.99% of shares

LLC Seti

50% of shares

LLC Tir Park Marneuli

17% of shares

Cooperative rk Sabetchisi-001

Director and a member of the board

LLC Geoengineering

40.35% of shares

LLC "Agra"

12.5% of shares

LLC "Tecno"

21.4% of shares

LLC Super Torphi

10% of shares

LLC Georgian- Azeri ConstructionDesign Complex Tbil-Baku

Director

LLC kmb

20% of shares

Registered Cooperative
Naphareuli's Wine

Director and a member of the board

LLC Enresi

Shareholder

LLC Nitaproqurumentgroup

"Director and 33.3% of shares"

Bioneli limited LTD (the Virgin Islands)

Partner according to the power of

attorney

Comments

109

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Name and Surname

Connection to the member

of Parliament

Parliamentary entity of the member

Nikolozi Nakophia

Son of Koba Nakophia

Minority

Lina Tophuria

Spouse of Kakhaber Okriashvili

Majority

Maka Mania

Spouse of Levan Kardava

Minority

Zaza Gogichaishvili

Spouse of Manana Kobakhidze

Majority

Nino Oragvelidze

Daughter of Manana Kobakhidze

Majority

Ketevan Surmanidze

Spouse of Murman Dumbadze

Majority

Nino Laskhishvili

Spouse of Paata Lezhava

Minority

110

SPRING, FALL AND EXTRAORDINARY SESSIONS

Company

Connection to the company

Georgia International Films LLC (US)

Partner

LLC Moving Pictures

Partner

LLC Goldinvest

Partner according to the power of

attorney

LLC Innovation Group Georgia

75% of shares

DREAM VISION CAPITAL INC (the

Virgin Islands)

Partner

LLC GMP

100% of shares

LLC Linati

100% of shares and Director

SP Lina Tophuria

Sole Proprietor

JSC Egrisi Representation

Director

Luche

Director

SP Zaza Gogichaishvili

Sole Proprietor

LLC Independent Arbitrary Court

25% of shares

Comments

Sole Proprietor
LLC Bavarian House

100% of shares

LLC Eko Mit

90% of shares

LLC Fashion Style

80% of shares

LLC Antiques

50% of shares

Has not been renewed after 2007

111

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

Name and Surname

Connection to the member

of Parliament

Parliamentary entity of the member

Nino Tkhelidze

Spouse of Omar Nishnianidze

Majority

Andro Kiknavelidze

Brother of Paata Kiknavelidze

Majority

Lali Kvantaliani

Spouse of Levan Shavlokhashvili

Majority

Tamila Abutidze

Spouse of Pavle Kublashvili

Minority

Ana Tarkhnishvili

Spouse of Levan Tarkhnishvili

Minority

112

SPRING, FALL AND EXTRAORDINARY SESSIONS

Company

Connection to the company

Comments

LLC Higher Educational Institute

Kolkha

Director and 72% of shares

Only Director is indicated in the

Declaration

LLC Public College Kolkha 11

Director and 100% of shares

Only Director is indicated in the

Declaration

LLC Kolkha 11

Director and 60% of shares

Only Director is indicated in the

Declaration

LLC Iberia 48

Director

LLC Iberia 49

Director

LLC Iberia 50

Director

LLC Iberia 47

Director

LLC Agrarian Market

19% of shares

LLC Lagi

10% of shares

LLC Lagi

Director and 40% of shares

LLC Saba 2005

Director and 100% of shares

LLC Phonichala

Director and 100% of shares

LLC Friends

Partner

LLC BCG Research

Director and 80% of shares

LLC Guri

Partner

LLC BCG Monitoring

Director and partner

113

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

CHAPTER

14

PROBLEMS IN THE ACTIVITIES OF THE

PARLIAMENT AND RECOMMENDATIONS
OF TRANSPARENCY INTERNATIONAL
GEORGIA

Transparency International Georgia actively monitors the activities of the Parliament. There is a wide range
of issues in the activities of the Parliament, for the regulation of which it is advisable that the Members of
Parliament and Parliament staff take appropriate measures. Transparency International Georgia expresses
its readiness to closely cooperate with the Parliament of Georgia for more transparency and more active
engagement of the civil society.
There are problems in terms of more engagement of the society in the legislative process, awareness of the
society and increase of the personal responsibility of the MPs with regard to their duties. For improving the
activities of the legislative body and for carrying out the controlling function, it is important that each Member
of Parliament contribute with their activities to the effective functioning of the Parliament.
It is notable that the Parliament has not shared the recommendations of Transparency International Georgia
specified in 2014 evaluation of performance of the Parliament. However, the recommendations of our organisation regarding transparency and increase of accountability of the Parliament were shared in 2015-2016
Action Plan of Open Parliament.
Transparency International Georgia thinks that it would be important for the Parliament to take into consideration the following recommendations:
1. Improvement of the legislative process
It is advisable to avoid systematic postponement of the entry of a law into force at the Parliament
and to substantiate each draft law, which is related to the postponement of the entry of a law into
force. It is important that, in coordination with appropriate agencies, the Parliament carries out periodic
monitoring of the measures necessary for the norms to be entered into force in the future, in order to
ensure all the circumstances that lead to the entry of amendments into force.
Expedited review of a law must be properly substantiated and must be applied by the Parliament
only in case of actual necessity, because the review of a draft law in one week limits the capability of
the society to be engaged in the process of review to the greatest extent possible.
The explanatory note of a draft law must be reasoned, informative and justified. Therefore it is
necessary to change the current standard of the explanatory note and improve it contextually.
It advisable that discussions of draft laws be confined to the Committee hearings and that in the
process of review of an especially important draft law (irrespective of the initiator of a draft law) the
Committees establish working groups including experts and the representatives of the civil society.
2. Parliamentary control enhancement and effective performance of the controlling function of
the Parliament
The Parliament should control the Government as effectively as possible. If required the members of
the Government should attend parliamentary sessions.
The Parliament should effectively use the parliamentary monitoring mechanisms determined by the
legislation: the Government Hour should be held, effective control of implementation of normative
acts should be carried out.
The Parliament should discuss at the plenary sessions the reports of the bodies accountable
to the Parliament, for example the reports of the National Bank of Georgia and the State Audit Office.
The Parliament should elect the officials and staff the state bodies within the timeframes established by law, in order not to interrupt effective functioning of the state institutions.

114

SPRING, FALL AND EXTRAORDINARY SESSIONS

The representative of the executive authority should bear more responsibility for the controlling function of

the legislative body. Irrespective of the author of a question, whether it is a member of the parliamentary
majority or minority, the question of a Member of Parliament must be properly answered within the
established timeframes and the answer must be signed by an addressee Minister. The Members
of Parliament should often exercise their rights, granted under the Constitution of Georgia, to control the
members of the Government and other officials accountable to them. The content of a question should
be related to the important aspects of the public policy. All questions and answers of the MPs, recorded
in the archives of the parliament office, should be proactively published.
The Procedural Issues and Rules Committee and the parliament bureau should apply the mechanisms
determined by law and raise the issue of liability of the officials who fail to answer the questions
of the Members of Parliament or who provide inaccurate information.
3. Accountability and growth of responsibility of the Members of Parliament

In 2015 there were 2199 cases of absence of the Members of Parliament from plenary sessions with a

reasonable excuse, including 1442 cases of absence due to family circumstances. Participation in the
activities of the Parliament is a primary function of the Members of Parliament. It is advisable that the
members of the legislative body bear more responsibility for participation in the activities of the Parliament and not to abuse the privileges granted to them by law, according to which absence due to family
circumstances is considered as a reasonable excuse. Unfortunately, the Parliament was not willing
to change the current regulation in order to exclude family circumstances from the reasonable
excuses of absence. It is advisable that the Parliament reject the existing faulty practice and
make appropriate amendments.
It is advisable that the Members of Parliament more actively use their official e-mails published on
the web-site of the Parliament, to enable the citizens to contact them.
The Members of Parliament should correctly fill in their asset declarations, include there their own shares
and the shares of their family members and resign from the management positions of companies as
provided for by law. The Procedural Issues and Rules Committee should carry out effective control.
The Parliament should draw up the Code of Ethics, which should include an effective mechanism
of monitoring and the sanctions for violation of the Code of Ethics.
4. Transparency of activities of the Parliament and better information of the society:

For better information of the society on the work of the Parliamentary Committees it is advisable that

annual reports of the activities carried out by all Committees and the action plans of the following
years be published on the web-site of the Parliament.
It is advisable that the information on Committee hearings, published on the web-site of the
Parliament, include the comments of the members of the society which were not shared by the
initiator of a law or a Committee.
It is advisable that the draft laws, adopted at various stages of discussion, be published on the
web-site of the Parliament in due course and the Committee hearing protocols be written as fast
as possible.
It is advisable that all opinions of leading and obligatory Committees be published on the web-site
of the Parliament.
Despite the fact that it is possible to watch online, with the rewind function, the Committee sittings and
plenary sessions via the web-site of the Parliament, in case of the desire to repeatedly watch the record
it is difficult and sometimes impossible to find because of the absence of the archive. It is advisable
that the web-site of the Parliament have a thematically categorized archive.
It is recommended that complete public information is provided to interested persons in a timely
manner as defined by law. Weak coordination between the Organizational Department of the
Parliament and the Committees should not be a barrier for interested persons in receiving public
information in a timely manner.

115

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

5. Ensuring engagement of the society:

The Parliamentary Committees should discuss at the sessions only the issues determined by
an agenda and new issues should not be added during the process of the session, which deprives the
interested parties of the opportunity to attend the process of review of the issues they are interested in.
Not only legislative initiatives but also legislative proposals should be published on the website of the Parliament, in order the representatives of the society to be preliminarily informed of the
legislative proposals of natural and legal persons and to be engaged in the process of discussion if they
are interested;
The legislative proposals should be discussed within the timeframes established by the Rules of
Procedure. It is advisable that the Committees publish information at the end of each session about the
number of legislative proposals which were approved, and if approved whether they were transformed
into a legislative initiative or not.
It is advisable that the agendas of plenary sessions and Committee hearings be published on the
web-site of the Parliament several days in advance. The information on plenary sessions and Committee
sittings is frequently published on the web-site of the Parliament in the previous evening or sometimes
on the same day, which hinders participation of the interested persons in the process of discussion.
6. Activities of the majoritarian Members of Parliament

It is advisable that the contact information of all majoritarian Members of Parliament be published

on the respective web-site (www.majoritarian.ge). Most of the majoritarian Members of Parliament

does not use the web-sites developed specially for their bureaus, which are linked with the web-site of
the Parliament.
It is advisable that the information on the applications, reviewed by the majoritarian MPs, their
public meetings and the conducted surveys be regularly published on the web-sites of the majoritarian MPs.
7. Regarding the transparency of the Parliament and the access to public information

It is advisable that the cooperation between the Organisation Department and the Committees of
the Parliament be improved in terms of receipt of information in order for the interested parties to
obtain public information within the timeframes established by law.

116

SPRING, FALL AND EXTRAORDINARY SESSIONS

Annex 1. Number of speeches given by the Members of Parliament in 2015

Beselia Eka

Parliamentary majority

113

Gogorishvili Khatuna

Parliamentary minority

112

Taktakishvili Chiora

Parliamentary minority

112

Tkemaladze Zurab

Parliamentary majority

93

Volsky Giorgi

Parliamentary majority

91

Kutsnashvili Zakaria

Parliamentary majority

86

Ratiani Sergo

Parliamentary minority

85

Kakhiani Giorgi

Parliamentary majority

80

Kantaria Aleksandre

Parliamentary majority

80

Kordzaia Tamar

Parliamentary majority

77

Kurtanidze Eldar

Parliamentary majority

76

Gachechiladze Giorgi

Independent

75

Minashvili Akaki

Parliamentary minority

71

Darchiashvili Davit

Parliamentary minority

66

Khmaladze Vakhtang

Parliamentary majority

63

Kandelaki Giorgi

Parliamentary minority

51

Tsiklauri Nugzar

Parliamentary minority

47

Baramidze Giorgi

Parliamentary minority

46

Maghradze Guguli

Parliamentary majority

45

Melikishvili Zurab

Parliamentary minority

45

Popkhadze Gedevan

Parliamentary majority

45

Lortkipanidze Dato

Parliamentary majority

44

Chikovani Irakli

Free democrats

42

Kighuradze Ivane

Parliamentary majority

41

Zhorzholiani Gia

Parliamentary majority

41

Machavariani Mikheil

Parliamentary minority

39

Kublashvili Pavle

Independent MP

38

Tsereteli Giorgi

Parliamentary minority

37

Subeliani Koba

Parliamentary minority

36

Khundadze Dimitri

Parliamentary minority

36

Tarkhnishvili Levan

Parliamentary minority

35

117

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

118

Kvachantiradze Zviad

Parliamentary majority

35

Tevdoradze Giorgi

Parliamentary minority

33

Mechiauri Tamaz

Parliamentary majority

33

Londaridze Tariel

Parliamentary minority

31

Dzidziguri Zviad

Parliamentary majority

31

Nadirashvili Irma

Parliamentary minority

29

Bobokhidze Akaki

Parliamentary minority

28

Mirotadze Ani

Parliamentary majority

28

Kherkheulildze Ekaterine

Parliamentary minority

27

Shavgulidze Shalva

Free democrats

26

Ebanoidze Nodar

Parliamentary majority

25

Vashadze Giorgi

Parliamentary minority

25

Sakvarelidze Pridon

Parliamentary majority

22

Sesiashvili Irakli

Parliamentary majority

21

Bashaleishvili Demur

Parliamentary majority

20

Bezhashvili Levan

Parliamentary minority

20

Nergadze Teimuraz

Parliamentary majority

20

Kavtaradze Giorgi

Parliamentary majority

20

Tsiskarishvili Petre

Parliamentary minority

20

Gabashvili Giorgi

Parliamentary minority

19

Lemonjava Vakhtang

Parliamentary minority

19

Maisuradze Temur

Parliamentary majority

19

Japaridze Zurab

Independent MP

19

Bukia Giga

Parliamentary majority

17

Khabareli Shota

Parliamentary majority

17

Onoprishvili Davit

Free democrats

15

Abashidze Zurab

Free democrats

14

Kobakhidze Manana

Parliamentary majority

14

Kopaliani Karlo

Parliamentary majority

14

Sajaia Mariam

Parliamentary minority

14

Topadze Giorgi

Parliamentary majority

12

Goguadze Nino

Free Democrats

11

SPRING, FALL AND EXTRAORDINARY SESSIONS

Dolidze Viktor

Free Democrats

11

Chilingarashvili Zurab

Parliamentary minority

11

Bokuchava Tinatin

Parliamentary minority

10

Targamadze Giorgi

Parliamentary minority

10

Ghviniashvili Giorgi

Parliamentary minority

Papuashvili Zaza

Parliamentary majority

Sanikidze Gubaz

Parliamentary majority

Shervashidze Iasha

Parliamentary majority

Bezhuashvili Davit

Independent MP

Berdzenishvili Davit

Parliamentary majority

Bolkvadze Anzor

Parliamentary majority

Kiknavelidze Paata

Parliamentary majority

Zhvania Gogla

Parliamentary majority

Usupashvili Davit

Parliamentary majority

Chapidze Eliso

Parliamentary majority

Tsagareishvili Giorgi

Free Democrats

Chkuaselil teimuraz

Parliamentary majority

Khabelovi Leri

Parliamentary majority

Japaridze Tedo

Parliamentary majority

Baratashvili Paata

Parliamentary majority

Nishnianidze Omar

Parliamentary majority

Okriashvili Kakhaber

Parliamentary majority

Khachidze Giorgi

Independent

Dumbadze Murman

Independent

Enukidze Gocha

Parliamentary majority

Vakhtangishvili Malkhaz

Parliamentary majority

Meladze Giorgi

Independent MP

Samkharauli Gela

Parliamentary majority

Chavchanidze Davit

Parliamentary minority

Khechinashvili Giorgi

Parliamentary majority

Gelashvili Gela

Parliamentary majority

Kiknavelidze Shalva

Parliamentary majority

4
119

ASSESSMENT OF PERFORMANCE OF THE GEORGIAN PARLIAMENT | 2015

120

Malashkhia Shota

Parliamentary minority

Shioshvili Tamaz

Free Democrats

Chitashvili Vazha

Parliamentary minority

Kvizhinadze Paata

Parliamentary majority

Makharadze Mikheil

Parliamentary minority

Tripolsky Erekle

Parliamentary majority

Khalvashi Pati

Parliamentary majority

Jachvliani Ioseb

Parliamentary majority

Berdzenishvili Levan

Parliamentary majority

Megrelidze Omar

Parliamentary minority

Keinishvili Nana

Parliamentary majority

Tsiklauri Mirian

Parliamentary majority

Bakradze Davit

Parliamentary minority

Gozalishvili Giorgi

Parliamentary minority

Gujabidze Bidzina

Parliamentary majority

Danelia Soso

Parliamentary majority

Darzievi Makhir

Parliamentary majority

Verulashvili Marika

Parliamentary majority

Kachakhidze Merab

Parliamentary majority

Lezhava Paara

Parliamentary minority

Misabishviil Guram

Parliamentary majority

Metrosyani Samvel

Parliamentary minority

Poghosiani Ruslan

Parliamentary majority

Suleimanovi Azer

Parliamentary minority

Chrdileli Otar

Parliamentary majority

Chkhetiani Darejan

Parliamentary majority

Tsereteli Malkhaz

Parliamentary majority

Khidasheli Tamar

Parliamentary majority

Achba Vladimer

Parliamentary majority

Akhalaia Roland

Parliamentary minority

Bukia Goderdzi

Parliamentary minority

Butskhrikidze Kakha

Parliamentary minority

SPRING, FALL AND EXTRAORDINARY SESSIONS

Gelashvili Valeri

Parliamentary majority

Davitashvili Koba

Independent MP

Dartsmelidze Davit

Parliamentary minority

Zviadauri Zurab

Parliamentary majority

Tamazashvili Aleksandre

Parliamentary majority

Karbelashvili Giorgi

Parliamentary minority

Kedelashvili Zaza

Parliamentary minority

Liparteliani Gogi

Parliamentary minority

Mamedovi Ali

Parliamentary majority

Mkoyani Enzel

Parliamentary minority

Nakopia Koba

Parliamentary minority

Nikolaishvili Ramaz

Parliamentary minority

Peikrishvili Giorgi

Parliamentary majority

Kardava Levan

Parliamentary minority

Kacheishvili Tamaz

Parliamentary majority

Kipshidze Nikoloz

Parliamentary minority

Shavlokhashvili Revaz

Parliamentary minority

Chkhaidze Teimuraz

Parliamentary majority

Khabuliani Sergo

Parliamentary minority

Khalvashi Rostom

Parliamentary majority

Khubuluri Tengiz

Parliamentary majority

Japaridze Viktor

Parliamentary majority

Japaridze Tamaz

Parliamentary majority

121