Parliamentary Elections in Georgia 8 October 2016pmmg.org.ge/res/uploads/1st interim report...

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Parliamentary Elections in Georgia

8 October 2016

First mid-term pre-election monitoring report

(15 July-15 September)

Tbilisi, 2016

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The present report was prepared and published by the PMMG within the frames of the project “To

contribute to the conduct of more free and fair Parliamentary Elections in the areas of Samtskhe-

Javakheti and Kvemo Kartli regions”. The project is funded by the Dutch Embassy in Georgia. The

content of the publication is under the sole responsibility of the “Multinational Georgia” and can in

no way be taken to reflect the views of the donor.

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Contents:

1. Main findings

2. About the pre-election monitoring mission of the PMMG implemented within the project

3. Election Administration

3.1 Educational programmes for the ethnic minorities

3.2 Election material translated into the languages of ethnic minorities

3.3 CEC information centre

3.4 Setting up an Election Administration

3.5 Training of the Election Administration members

3.6 Registration of electoral subjects

3.7 Ethnic minority representatives in the lists submitted by the electoral subjects for the

parliamentary elections in Georgia on 8 October

4. Incidents revealed during the pre-election monitoring

Physical confrontations;

Alleged use of enforcement administrative resources for election purposes;

Abuse of enforcement administrative resources for election purposes;

Abuse of financial administrative resources for election purposes;

Abuse of institutional administrative resources for election purposes;

Alleged use of institutional administrative resources for election purposes;

Alleged interference with the pre-electoral campaign/activities;

Voter bribing

5. Recommendations

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1. Main findings:

The long-term observers of the PMMG conduct the pre-election monitoring in 3 districts with

high density of ethnic minority settlements (#35 and #36 Marneuli, #46 Ninotsminda-

Akhalkalaki election districts) and at the Central Election Commission (CEC).

During the reporting period, the CEC was busy with implementing tasks according to the

schedule of electoral activities, undertaking trainings in awareness raising for ethnic minority

voters, members of the election administration with ethnic minority representatives, staff of

various NGOs and students. An information centre was created at the CEC, which provides

election-related information in languages understandable for ethnic minorities;

Unlike the parliamentary elections of 2012, the electoral environment for the 2016

parliamentary elections is characterised with higher level of freedom, which creates more

possibilities for larger number of political subjects to run electoral campaigns in

comparatively free, fair and competitive environment.

12 electoral subjects from party lists and 25 majoritarian candidates are registered and run in

the elections within the geographical scope of the present monitoring mission. Among the

majoritarian candidates presented by the political parties in the Samtskhe-Javakheti and

Kvemo Kartli regions 17 belong to the ethnic minorities.

It is noteworthy that unlike the parliamentary elections of 2012, the electoral environment

for the 2016 parliamentary elections is characterised with less legal gravity of revealed

electoral violations and lower frequency of violations. In the reporting period, the

organisation revealed 2 facts of physical confrontation, 7 facts of alleged use of enforcements

administrative resources, 1 fact of abuse of enforcement administrative resources, 1 fact of

abuse of financial administrative resources, 1 fact of abuse of institutional administrative

resources, 1 fact of alleged use of institutional administrative resources, 1 fact of alleged

interference with the election campaign/activities and 1 fact of voter bribing.

2. About the pre-election monitoring mission of the PMMG implemented within the project

The PMMG started monitoring of the Georgian parliamentary elections of 8 October, 2016, on

15 July. The organisation is observing the pre-election environment in the 2 regions of Georgia

with 4 long-term observers, namely in Kvemo Kartli (Marneuli) and Samtskhe-Javakheti

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(Ninotsminda, Akhalkalaki). Both regions and respectively the 3 constituencies have been

selected based on the specificity of the organisation’s mission – these municipalities are densely

populated with ethnic minorities.

The long-term observers of the organisation underwent special trainings. They were given

concrete instructions in order to successfully accomplish their mission. The PMMG attaches

particular importance to establishing the accuracy of information in the process of fact finding

and verification through the different stakeholders and unbiased sources involved in the

electoral processes.

During the pre-election monitoring the long-term observers covered the following aspects:

Working of the Election Administration, the process of its setting up, verification of the

voter lists;

Working of the local administrative structure in the pre-election period;

Information about the political parties and majoritarian candidates;

Pre-election campaign and media;

Facts of violation of the law/pressure;

Apart from the 2 regions of Georgia, the organisation conducts pre-election monitoring at the

CEC through a permanent representative. The head office of the organisation is involved in all

ongoing pre-election activities in the country and participates in actions implemented by the

stakeholders involved in the elections.

3. Election Administration

3.1 Educational programmes for the ethnic minorities

After officially setting the date of the parliamentary elections by the decree of the President of

Georgia, the CEC has reinvigorated its activities to ensure holding the elections in fair and

highly professional environment. It is noteworthy, that the CEC has made steps towards raising

awareness of the ethnic minorities and working with the members of the election

administrations with ethnic minorities. Educational trainings were held for not only the

members of the election administrations, but also for the staff of the various NGOs, as well as

students of a number of higher education establishments as a part of the awareness raising

campaign of young ethnic minority voters, which is commendable. In addition, meetings were

held with pupils belonging to ethnic minorities throughout Georgia.

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It is also noteworthy, that LEPL Electoral Systems Development, Reforms and Training Centre,

under the CEC, has been allocating grants to local NGOs since 2010 through calls for proposals

in order to support raising awareness and civic involvement of the voters. According to the rules

of grant allocation, the CEC defines on an annual basis concrete priority directions for financing

within the grants programme.

One of such priority directions for the parliamentary elections of Georgia of 8 October 2016 is

support for involvement of the ethnic minority voters in the socio-political and electoral

processes. 8 projects financed within the grants programme cover the regions with ethnic

minorities.

3.2 Election material translated into the languages of ethnic minorities

Various electoral materials will be translated into the ethnic minority languages (Armenian and

Azerbaijani) for the parliamentary elections of 8 October 2016. In particular, the following

material has been translated into Azerbaijani and Armenian languages for the Azerbaijani and

Armenian speaking members of the PEC: guidelines/instructions for the PEC members,

memo/instruction for the PEC Chairperson, functions of the PEC member responsible for

regulating the flow of voters, rights and obligations of the PEC Secretary on the election day,

functions of the PEC member responsible for registration of voters, functions of the PEC

member responsible for supervising the ballot-box and special envelopes and those of the PEC

member accompanying the ballot-box. In addition, an educational film was made for the PEC

members “E-Day Procedures” with subtitles.

The CEC image/information videos were translated into Azerbaijani and Armenian languages to

disseminate information among the ethnic minorities, which are aired by the regional TV

channels in Samtskhe-Javakheti and Kvemo Kartli. The data in the voters’ unified list is

available in Azerbaijani and Armenian languages for the voters in the regions densely populated

with ethnic minorities.

3.3 CEC information centre

Like in previous years, an information centre was created at the CEC, which provides election-

related information to voters in Georgian, Armenian, Azerbaijani and Russian languages. The

staff of the centre includes operators speaking ethnic minority languages.

3.4 Setting up an Election Administration

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According to the long-term observer of the PMMG the process of setting up of the Election

Administrations in a number of municipalities was open and transparent. The organisation

welcomes quantitative improvements in involving ethnic minorities in the work of the

commissions; however, it must be mentioned that none of the member of the Marneuli DEC

belongs to ethnic minorities (13 members none of them representing ethnic minorities and 4 of

them are women). The situation is different in Ninotsminda (9 out of 13 members belong to

ethnic minorities and 5 out of 13 are women) and in Akhalkalaki (8 out of 13 members belong

to ethnic minorities and 7 out of 13 are women).

The number of PEC elected/appointed members for the parliamentary elections of Georgia of 8

October 2016, made up 47 242 members. This includes a total number of 2 719 PEC members

belonging to ethnic minorities (including Azerbaijani – 1349, Armenian – 1339, Ossetian – 12,

Russian – 11, Avarian – 7, Ukrainian - 1).

The number of PEC members in Marneuli belonging to ethnic minorities makes 12% and the

number of women reach 20%; while the number of PEC ethnic minority members in

Ninotsminda and Akhalkalaki reach 90% and women - 25%.

3.5 Training of the Election Administration members

The long-term observers of the PMMG monitored trainings of the election officials. The

organisation welcomes the efforts of the trainers, their level of preparation and trainings held

for the members of the election administrations in languages understandable for ethnic

minorities. It must be noted that Azerbaijani and Armenian speaking PEC members undergo

intensive training course, which is implemented in 4 phases. At the 1st phase the PEC members

were instructed on rules of election of PEC management. The second phase was dedicated to

training of the entire composition of the PEC (13 members) that included competencies of the

PEC until the E-Day and procedures to be implemented during the E-Day. The 3rd phase was

dedicated to the training of the PEC management (chairperson, deputy chairperson and a

secretary) about their rights and obligations. At the 4th phase of the training the PEC members

will have simulation exercise during which they will stage E-Day episodes.

3.6 Registration of electoral subjects

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The final deadlines of the registration of majoritarian and proportional list candidates willing to

run in the parliamentary elections of 8 October 2016 and of making corrections expired on 8

September.

In 2 regions, where the organisation is implementing its pre-election monitoring mission, the

following electoral subjects are registered and run through party list:

#1 Bloc “Paata Burchuladze – State for People”

#3 Nino Burjanadze – Democratic Movement

#4 “Jondi Bagaturia – Georgian Group”

#5 Electoral bloc “United National Movement”

#6 “Usupashvili - Republicans”

#7 “Tamaz Mechiauri – United Georgia”

#8 Bloc “David Tarkhan-Mouravi, Irma Inashvili – Alliance of Patriots of Georgia, United

Opposition”

#10 “Shalva Natelashvili – Labour Party of Georgia”

#25 “Kakha Dzagania, Soso Shatberashvili, Paata Jibladze, Archil Benidze – Leftists Alliance”

#27 “Irakli Alasania – Free Democrats”

#30 “Our Georgia” (Badri Patarkatsishvili electoral headquarters)

#41 Georgian Dream – Democratic Georgia

3.7 Ethnic minority representatives in the lists submitted by the electoral subjects for the

parliamentary elections of Georgia on 8 October

As of 14 September 2016, the electoral subjects submitted to the CEC the party lists for the

parliamentary elections of Georgia to be held on 8 October 2016.

The number and places of ethnic minority representatives in the party lists are as follows:

1. Bloc “Paata Burchuladze – State for People”: there are 11 candidates belonging to ethnic

minorities in the list in the following order - 18, 53, 55, 59, 66, 78, 101, 116, 137, 140, 162;

2. Electoral bloc “Nino Burjanadze – Democratic Movement”: there are 6 candidates belonging

to ethnic minorities in the list in the following order - 19, 55, 137, 138, 141, 165;

3. “Jondi Bagaturia – Georgian Group”: there are 4 candidates belonging to ethnic minorities in

the list in the following order - 43, 78, 79, 125;

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4. Electoral bloc “United National Movement”: there are 14 candidates belonging to ethnic

minorities in the list in the following order - 2, 26, 31, 41, 50, 94, 96, 97, 129, 144, 149, 151,

162, 173;

5. “Usupashvili - Republicans”: there are 4 candidates belonging to ethnic minorities in the list

in the following order - 20, 28, 44, 99;

6. “Tamaz Mechiauri – United Georgia”: there are 12 candidates belonging to ethnic minorities

in the list in the following order - 9, 43, 63, 68, 84, 85, 89, 101, 104, 110, 116 136;

7. Bloc “David Tarkhan-Mouravi, Irma Inashvili – Alliance of Patriots of Georgia, United

Opposition”: there are 8 candidates belonging to ethnic minorities in the list in the following

order -14, 36, 37, 43, 83, 84, 94, 140;

8. “Shalva Natelashvili – Labour Party of Georgia”: there are 6 candidates belonging to ethnic

minorities in the list in the following order - 61, 95, 138, 140, 148, 153;

9. “Kakha Dzagania, Soso Shatberashvili, Paata Jibladze, Archil Benidze – Leftists Alliance”:

there are 12 candidates belonging to ethnic minorities in the list in the following order - 45,

61, 74, 75, 83, 94, 98, 104, 106, 110, 112, 120;

10. “Irakli Alasania – Free Democrats”: there are 5 candidates belonging to ethnic minorities in

the list in the following order - 20, 21, 105, 132, 181;

11. “Our Georgia” (Badri Patarkatsishvili electoral headquarters): there are 12 candidates

belonging to ethnic minorities in the list in the following order - 4, 12, 17, 24, 25, 28, 39, 48,

62, 92;

12. “Georgian Dream – Democratic Georgia”: there are 10 candidates belonging to ethnic

minorities in the list in the following order - 19, 20, 22, 23, 26, 30, 68, 85, 89, 99.

Important to note that the largest number of ethnic minority representatives in the electoral

lists presented by the electoral subjects for the parliamentary elections of Georgia scheduled on

8 October 2016, is found in the lists submitted by Electoral bloc “United National Movement”

(14 candidates), “Kakha Dzagania, Soso Shatberashvili, Paata Jibladze, Archil Benidze – Leftists

Alliance” (12 candidates), “Tamaz Mechiauri – United Georgia” (12 candidates),“Our Georgia”

(Badri Patarkatsishvili electoral headquarters) (12 candidates), Bloc “Paata Burchuladze – State

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for People” (11 candidates),“Georgian Dream – Democratic Georgia” (10 candidates), while the

list submitted by the “Usupashvili - Republicans” has the lowest number of the ethnic minority

representatives (4 candidates).

It is interesting also that only three electoral subjects have candidates belonging to ethnic

minorities among the first 10 in their lists, namely the Electoral bloc “United National

Movement” (2nd place), “Tamaz Mechiauri – United Georgia” (9th place) and “Our Georgia”

(Badri Patarkatsishvili electoral headquarters) (4th place).

As regards the second 10 positions, these include: Electoral bloc “Nino Burjanadze – Democratic

Movement” (19th place), Bloc “Paata Burchuladze – State for People” (18th place), “Usupashvili -

Republicans” (20th place), “Irakli Alasania – Free Democrats” (20th place), “Our Georgia” (Badri

Patarkatsishvili electoral headquarters) (12th and 17th places) and “Georgian Dream – Democratic

Georgia” (19th and 20th places).

In addition, we would like to note that there is a gap in the order of ethnic minority candidates

at the beginning and the end of the lists submitted for the parliamentary elections of 2016 by

the two largest political subjects in the Georgian Parliament - “Georgian Dream – Democratic

Georgia” and “United National Movement”.

Namely, ethnic minority representatives among the top candidates on the list presented by

“Georgian Dream – Democratic Georgia”, are grouped at 19th, 20th, 22nd, 23rd, 26th and 30th

positions; while in the case of the “United National Movement”, top ethnic minority candidates

occupy 26th and 31st positions.

Taking into account all the above, we may conclude that the political subjects make efforts to

include ethnic minority representatives in their electoral lists. Despite this, if we look at their

order of positions, as well as the chances of the political subjects to succeed (in accordance with

existing public polls), we may suggest that ethnic minorities will be represented modestly in the

future composition of the legislative body.

As regards the majoritarian candidates belonging to ethnic minorities registered for the

parliamentary elections of 8 October 2016, there is a considerable increase in the number of

majoritarian candidates representing ethnic minorities, namely as of 14 September 2016 there

are 42 ethnic minority majoritarian candidates registered in 73 majoritarian electoral districts.

These candidates run in the highly dense ethnic minority constituencies. The number of

registered candidates in the districts falling under the scope of the organisation’s monitoring

mission, according to the data of 14 September 2016, is as follows:

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Electoral district Number of majoritarian candidates

Ethnic

minority

(number)

Marneuli ( #35) 9 5

Marneuli (#36) 8 4

Akhalkalaki-Ninotsminda (#46) 8 8

4. Incidents revealed during the pre-election monitoring

Physical confrontations

#36 Marneuli Election District:

1) According to the long-term observer of the PMMG, on 22 July there was a verbal

confrontation among representatives of the “United National Movement”, “Republican

Party”, “Burchuladze – State for People” and “New Georgia”, which grew into physical

confrontation. The conflict ignited on the basis of different political views.

#46 Akhalkalaki Election District:

2) Based on information provided by the Bloc “Burchuladze – State for People”, on 15 August a

physical confrontation took place between a trustee (Rtsmunebuli) of the village Sulda and

the representative of the party because of displaying the party posters (the Rtsmunebuli tore

down the opposition party posters and was preventing displaying the new ones). After this

confrontation, the Rtsmunebuli filed a complaint with the court. Currently, the proceedings

are underway.

Alleged use of enforcement administrative resources for election purposes


1) According to the information collected by the long-term observer of the PMMG, on 7

August, at the request of the management, teachers of the Nursery School and Public School

were at the rally organised by “Georgian Dream – Democratic Georgia”. As they explained,

they were not subject to intimidation or threat. Although, during an informal conversation

with the long-term observer they referred to possible risk of losing the job as a motive.

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#46 Ninotsminda Election District:

2) According to Z.Chilingarashvili, a representative of the “United National Movement”, on 2

August Gor Gomtsyan, a policeman working in Ninotsminda Police office was sacked

because of his mother Lida Antanosyan being an activist of their party. At the Ninotsminda

Police office, where he had worked, they explained that he filed request to leave at his own

wish. Gor Gomtsyan himself avoids making any comment.


3) According to I.Bairamov, Chair of the district office of the Bloc “Burchuladze – State for

People”, on 7 August the party activists (in the villages Shulaveri and Damia-Giurarkh) were

subject to pressure and intimidation from the village Rtsmunebuli and members of the

village administration (intimidation implied arrest on different grounds). The Rtsmunebuli

makes no comment.

4) According to P.Khalilov, appearing on the election list of Election Bloc “Gogi Topadze –

Industrialists, Our Homeland”, on 16 August their activist (a female) was threatened with

losing a job (she is a teacher in the village Kurtliar), unless she quitted the party. Despite the

fact that the name of this female activist is known, we refrain from making her name public

at her own request.

5) According to A.Imamkuliev, a majoritatian candidate of the “United National Movement”,

on 31 August his activists and relatives in the village Damia-Giurarkh were subjected to

pressure and threat with taking away their land, unless they quitted their job (i.e. being

activists). The threat comes from the Council (Sakrebulo) member Mamed Mamedov. As he

explained, they will give the confiscated lands to the supporters of the “Georgian Dream –

Democratic Georgia”. This fact was not confirmed at the electoral office of the “Georgian

Dream – Democratic Georgia”, although the population confirm in private talk that such

conversation did take place.


6) As stated by A.Suleimanov, activists of the “United National Movement” in the villages

Sadakhlo, Kapanakhchi, Kurtliari and Kirikhlo are subject to pressure and threat from the

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school directors and Rtsmunebulis, who threaten with firing their relatives and family

members from work, unless they stop their activities in the “United National Movement”.

The directors deny such a fact and Rtsmunebulis make no comment.


7) On 26 July P.Khalilov, appearing on the election list of Election Bloc “Gogi Topadze –

Industrialists, Our Homeland” informed the long-term observer of the PMMG that a

member of the staff at the local municipality transport division forbade drivers of Marneuli-

Tbilisi route-taxis accept orders from the party “Our Homeland”. The drivers refuse to

cooperate with them.

Abuse of enforcement administrative resources for election purposes


According to the long-term observer of the PMMG, on 7 August a big rally was organised by

“Georgian Dream – Democratic Georgia” in Ninotsminda. They took supporters to Akhaltsikhe

to present their candidate, but there were school and nursery-school teachers who complained

about being brought to the rally against their wish; they had to appear there because of the fear

of losing their job.

Abuse of financial administrative resources for election purposes


At the end of July the Akhalkalaki municipality received additional amount of about GEL 6 000

000 through collecting property taxes. Hence, on 5 August the Akhalkalaki Sakrebulo adopted

amendments to the budget based on the additional amounts (GEL 5 500 000 by collecting taxes),

which will be used to finance infrastructure projects to be implemented in the current as well as

next year. However, it must be noted that amendments on such amounts have never been made

to the budget, especially in the pre-election period.

Abuse of institutional administrative resources for election purposes


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According to the long-term observer of the PMMG, on 22 August at noon a rally of the

“Georgian Dream – Democratic Georgia” took place in Ninotsminda with the participation of

the Prime Minister, members of the local administration (Gamgeoba), head of the education

resource-centre, directors and teachers of the public school. The rally was held during the

working hours.

Alleged use of institutional administrative resources for election purposes


According to the long-term observer of the PMMG, the Marneuli College, which offers paid

courses, launched from September a 4-month professional re-training courses (in 3

specialisations) with the financial support of the Ministry of Education. It is noteworthy that

such a programme has never been implemented in non-election year and nothing was known

about it before the launch.

Alleged interference with the pre-electoral campaign/activities


As the long-term observer of the PMMG was informed by the election headquarters of the Bloc

“Burchuladze – State for People” on August 18, their activists were prevented and prohibited by

the representatives and activists of the ruling party from moving on vehicles carrying their party

flags, or else they would encounter problems. This fact was denied at the office of “Georgian

Dream – Democratic Georgia”. As the representative of the Bloc “Burchuladze – State for

People” explained, there was no recurrence of the fact.

Voter bribing


According to the long-term observer of the PMMG, on 22 August after opening the election

headquarters of “Georgian Dream – Democratic Georgia”, a Chaikhana (tea house) was opened

just beside the headquarters and the office of the majoritarian candidate of “Georgian Dream –

Democratic Georgia”. It offered free tea to the people. It is not known whether they had licence

issued by the self-government structure. According to the population, they are offered tea by

T.Naverian, a majoritarian candidate of “Georgian Dream – Democratic Georgia”.

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5. Recommendations

1) The CEC should ensure that the requirements of the electoral legislation are respected and

timely and adequate liability measures are undertaken against offenders.

2) The local self-government structures should take measures to prevent agitations by the civil

servants during the working hours for the benefit of any political subject. Also they must

ensure that political impartiality is respected and that the budget or human resources of the

local self-government structures are not used for the party purposes; the management of the

local self-government structures must provide information to the civil servants working at

these structures on their rights and obligations.

3) In the pre-election period the electoral subjects and their representatives should refrain

from agitations which include signs of voter bribing. Apart from this, during their election

campaigns the electoral subjects and their representatives should avoid using the speech

which infringes the human rights as well as refers to ethnic, religious, social, gender or

other belonging in a negative context.

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