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 SamtskheJavakheti 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 NinotsmindaAkhalkalaki 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 4

(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;

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

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Information about the political parties and majoritarian candidates;

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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.

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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 electionrelated information to voters in Georgian, Armenian, Azerbaijani and Russian languages. The staff of the centre includes operators speaking ethnic minority languages.

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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 9

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

Marneuli ( #35) Marneuli (#36) Akhalkalaki-Ninotsminda (#46)

Number of majoritarian candidates

9 8 8

Ethnic minority (number) 5 4 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

#46 Akhalkalaki Election District: 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. 11

#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.

#35 Marneuli Election District: 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.

#36 Marneuli Election District: 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 12

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.

#35 Marneuli Election District: 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 MarneuliTbilisi route-taxis accept orders from the party “Our Homeland”. The drivers refuse to cooperate with them.

Abuse of enforcement administrative resources for election purposes

#46 Ninotsminda Election District: 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

#46 Akhalkalaki Election District: 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

#46 Ninotsminda Election District: 13

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

#35 Marneuli Election District: 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

#46 Akhalkalaki Election District: 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

#35 Marneuli Election District: 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”. 14

5. Recommendations

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The CEC should ensure that the requirements of the electoral legislation are respected and timely and adequate liability measures are undertaken against offenders.

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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.

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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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