International Society Fo I International Society for Fair Elections And

International Society for Fair Elections and Democracy

I S F E D

Monitoring of the Developments in Local Self-Government Agencies following the October 1, 2012 Parliamentary Elections

First Report

December 21, 2012

Tbilisi

Publishing the report was made possible through the Embassy of Kingdom of the Netherlands to Georgia as well as the US Agency for International Development (USAID) and with the financial support of the National Democratic Institute (NDI). The views expressed in the report belong solely to the International Society for Fair Elections and Democracy and do not necessarily reflect the views of the Embassy of Kingdom of the Netherlands to Georgia, NDI, USAID or United States Government

1 Background After the coalition Georgian Dream won the October 1, 2012 parliamentary elections in Georgia, former opposition force gained parliamentary majority. The Prime Minister and the members of the Government were nominated by the new ruling power. Although changes in the central authorities should not have affected local self-governments, the process of replacing municipal officials (Gamgebelis1, Mayors, and Sakrebulo Chairpersons) ensued in various municipalities throughout the country right after the elections. Former officials who represented the United National Movement (UNM) were massively replaced by representatives of the Georgian Dream. In individual cases new municipal officials demanded resignation of staff of self-governments and heads of territorial agencies. ISFED also observed a case of a politically motivated dismissal following the elections in Tbilisi City Hall (for sympathizing with the Georgian Dream). Changes in the local self-governments mostly occurred in the midst of protest rallies. In particular, local population and mostly local supporters and activists of the Georgian Dream, started staging protest rallies demanding resignation of municipal officials. Decisions of Sakrebulos to appoint representatives of the UNM to vacant positions of Gamgebeli were frequently followed by protest rallies. Participants generally demanded replacement of acting or newly appointed Gamgebelis and Sakrebulo Chairpersons with local activists and supporters of the Georgian Dream. Frequently protesters resorted to radical measures – going on a hunger strike. Regrettably, rallies often turned illegal by expression of physical violence, invasion of buildings, disruption of meetings and blocking offices of Gamgeoba. Sometimes the authorities failed to take timely and effective measures in response. ISFED was monitoring the developments following the parliamentary elections in all municipalities. It condemned a number of times the acts of illegal pressure against self-governments2, calling for investigation and prosecution of these facts.

Monitoring Methodology ISFED is carrying out the monitoring of local self-governments in all 69 municipalities. It mostly draws on its own regional and district coordinators dislocated throughout all municipalities as sources of information. ISFED also draws on media reports about ongoing developments, verified by its own representatives at the local level. This report offers a description of the developments in municipalities arranged in a chronological order.

1 Head of the executive branch of local selg-governmant;

2 http://isfed.ge/pdf/2012-11-16.pdf http://isfed.ge/pdf/2012-11-28.pdf 2 Key Findings of the Monitoring Following the October 1, 2012 elections to present,3 total of 31 Gamgebelis have resigned, including 29 at their own free will and two at the will of Sakrebulo. During the very same period, 16 chairpersons of Sakrebulo resigned, including 14 at their own will and two at the will of Sakrebulo. In most of the cases Gamgebelis and Sakrebulo chairpersons resigned at their own free will, often citing health problems and family commitments in their letters of resignation as the reason. In a number of cases former officials openly clarified that their decision to resign was motivated by recent changes in the central authorities. They also stated that the decision served the purpose of preventing escalation of the situation, as frequently their voluntary resignations were preceded by protest rallies staged by the Georgian Dream supporters. Only in individual cases are former municipal officials willing to openly and publicly discuss the pressure they had been subjected to. 4 In certain cases Gamgebelis resigned based on Sakrebulo’s decisions. Even though the UNM holds majority in most Sakrebulos, new Gamgebelis and Sakrebulo Chairpersons elected by them are local representatives and supporters of the Georgian Dream, which raises legitimate questions about whether these decisions have been made under pressure. Frequently these changes have been caused by the fact that following the parliamentary elections representatives of former ruling party left majority factions in Sakrebulos to establish new factions that frequently became supporters of the Georgian Dream. It was due to these changes that the UNM no longer has a majority holding in Sakrebulos of Sachkhere, Dmanisi, Akhaltsikhe. Notably, Gamgebelis were appointed in an expedited manner, which often engendered staging of protest rallies. Protest rallies targeting local self-governments mostly voiced demands for resignation of Gamgebelis and Sakrebulo Chairpersons. Participants included activists and supporters of the Georgian Dream in addition to the local population. Similar rallies were staged in 16 municipalities, including 115 rallies where protest turned illegal by expression of physical violence, invasion of buildings, disruption of meetings and blocking buildings. After resignation of Gamgebelis, employees of Gamgeoba in 7 municipalities 6 were forced to submit letters of resignation; however, most of them continue to work as usual. Structural reorganization and excessive number of employees were frequently cited as reasons. Notably, new Gamgebelis were mostly replaced by their deputies and heads of departments. All representatives of territorial agencies in Kaspi, Dedoplistskaro and Sachkhere were replaced. Further, following the elections criminal proceedings were instituted against 2 Gamgebelis7 and 2 Sakrebulo Chairpersons8.

3 December 21, 2012; 4 These officials include Poti Sakrebulo Chairperson, Tsalka Gamgebeli, Dmanisi Sakrebulo Chairperson; 5In particular, such incidents have been reported in the following municipalities and self-governing cities: Marneuli, Samtredia, Tetritskaro, Tsalka, Martvili, Gurjaani, Kobuleti, Batumi, Poti; 6 These facts have been reported in Telavi, Akhmeta, Dedoplitskaro, Sachkhere, Kaspi, Kareli and Zestaponi Municipalities; 7 Gamgebelis of Zestaponi and Kharagauli; 3 Legal Base Under Article 2 of the Constitution of Georgia, citizens of Georgia regulate issues of local importance by means of local self-governments. 9 Under the Organic Law of Georgia on Local Self Government, Sakrebulo is a representative body of a self-government unit, whereas realization of decisions of Sakrebulo is ensured by Gamgeoba (and City Hall in the following five self-governing cities of Rustavi, Poti, Tbilisi, Batumi, Kutaisi). 10

Chairperson of Sakrebulo is head of a self-governing unit and Sakrebulo. Chairperson of Sakrebulo and his/her deputy (in cases of self-governing cities – two deputies) as well as chairpersons of commissions and factions are elected by Sakrebulo from its members for the Sakrebulo term of office. Any member of Sakrebulo is entitled to nominate a candidate for the position of Sakrebulo Chairperson. Sakrebulo may remove the Chairman. No less than 1/3 of the total number of the Sakrebulo members may raise the issue of the removal of the Chairman in written. The Chairman will be considered removed if more than half of the Sakrebulo listed members vote for his/her removal. Gamgeoba (City Hall) enforces decisions of Sakrebulo. Gamgebeli (Mayor) manages the work of of Gamgeoba (City Hall). Gamgebeli (Mayor) is a public servant of a local self-government.11 Gamgebeli of Municipality and a City Mayor (except Tbilisi Mayor) 12 are appointed by the Chairperson and approved by Sakrebulo. Sakrebulo approves appointee by supporting him/her with more than half the votes of Sakrebulo listed members. Sakrebulo Chairperson has the right to dismiss Gamgebeli (Mayor), with Sakrebulo’s approval if his/her work was deemed as inadequate by Sakrebulo or when conditions envisaged by Chapter 10 of the Law on Public Service are evident. Head of a territorial unit – a representative or head of a structural unit - are appointed and dismissed by Gamgebeli (Mayor). They have to go through a competition for appointment.

8 Chairpersons of Khoni and Vani Sakrebulos; 9 Citizens of Georgia registered in a self-government unit regulate issues of local importance through local self- government, without curtailing the state sovereignty and as prescribed by the Georgian legislation. State authorities promote the development of local self-government; 10 Article 19 of the Law of Georgia on Local Self-Government; 11A citizen of Georgia who has already attained 18 years of age, has higher education and is fluent in the state language may serve as a municipal public officer; 12Tbilisi Mayor is elected directly by citizens of Georgia registered in Tbilisi; 4 Detailed findings of monitoring of the developments in municipalities following the elections Marneuli – on October 5, 2012, activists of the Georgian Dream invaded the building of Marneuli Gamgeoba and demanded the municipality employees vacate their offices. They abused employees of Gamgeoba verbally and physically, and assaulted the Deputy Gamgebeli and his driver. Gamgebeli was also injured during the incident and was transported to the local hospital together with five other employees by an ambulance. “Proxies of the Georgian Dream stated that they represented the winning party, demanding employees of Gamgeoba to leave the building”, - stated Gamgebeli. Police officers were able to diffuse the tensions. On December 18 up to 60 supporters of the Georgian Dream staged a protest rally outside Marneuli Gamgeoba, demanding appointment of Paata Abramishvili, member of the Georgian Dream, as Marneuli Gamgebeli. They were saying that if the incumbent Zaza Dekaniodze was going to leave the office, Paata Abramishvili was to be appointed. Notably, members of the Georgian Dream are also pushing for other candidates for the position of Marneuli Gamgebeli – Burnadze and Tsopurashvili. Kobuleti – shortly after the October 1 elections, Chairperson of Sakrebulo resigned by submitting the letter of resignation; appointment of Elguja Bagrationi (UNM) as a new chairperson ensued. As former Gamgebeli of Kobuleti, Gela Tskhomelidze participated in parliamentary elections, his deputy was appointed acting Gamgebeli. At the October 5 meeting of Kobuleti Sakrebulo, Tengiz Zoidze was elected to the position of Kobuleti Gamgebeli by majority of votes. On December 17, activists of the Georgian Dream staged a protest rally outside Kobuleti Gamgeoba, demanding resignation of Gamgebeli Tengiz Zoidze, Sakrebulo Chairperson Elguja Bagrationi and other representatives of the UNM. Hundreds of participants invaded the building. Activists said that members of the Georgian Dream had to occupy offices in the self-government; otherwise, they planned to continue protesting. Oni – Paata Maisuradze served as Oni Gamgebeli prior to the October 1 elections. He used to serve at the internal forces of Georgia, which he went back to following the elections. In early November former chief of Oni police, Koba Gamkrelidze was appointed as Oni Gamgebeli. Sakrebulo Chairperson explained that the only application filed for the vacant position of Gamgebeli was by Koba Gamkrelidze and therefore, Sakrebulo considered only his candidacy and decided in his favor. Irma Makarashvili was the only member of the Gerogian Dream who voted against Maisuradze. Borjomi – after Gamgebeli Vakhtang Maisuradze submitted a resignation letter for personal reasons, two of his deputies Grigol Jvaridze and Piran Gogichashvili resigned amid political changes. Third deputy Elizbar Stepnadze continues to work. On October 25, Member of Sakrebulo from Republican Party Davit Kamkamidze was appointed acting Gamgebeli of Borjomi Municipality. Prior to the elections, Kamkamidze was serving as head of the office of the Georgian Dream in Borjomi. Representatives of the Georgian Dream were appointed to the positions of first and second deputies of Borjomi Municipality Gamgebeli, head of the department of culture, sports, monuments protection and youth affairs, head of the union of pre- 5 school education institutions and Borjomi Representative. Head of Gamgeoba Office Murad Nozadze, Head of the Cultural Department Maia Guliashvili and Head of the Social Affairs Department Nino Chkhetia submitting letters of resignation for personal reasons. Kutaisi – following the parliamentary elections, position of Kutaisi Mayor was vacant. Election of a new Mayor at Sakrebulo meeting was highly controversial as opposition parties maintained that competition had not been announced. Member of Sakrebulo Mamuka Mgvdeladze (New Rights) confronted members of the UNM, while members of Sakrebulo from Christian Democratic Party protested by leaving the meeting. Nevertheless, Besik Bregadze was elected as the new Mayor. During an extraordinary meeting of Sakrebulo on November 14, members from the UNM motioned for removal of Sakrebulo Chairperson and his deputies from office without supporting the motion. Members of Sakrebulo from opposition parties were going to motion for removal of the Chairperson but majority members managed to do it earlier and thus secured the office for the Chairperson for three more months, as under the law on local self-government, a motion for removal of the Chairperson can be raised after no earlier than three months. Following the elections two members of Sakrebulo left the faction UNM in Kutaisi Sakrebulo and formed a new faction Kutaisi together with former representatives of the New Rights. Later on, five more members left the UNM but they maintain the status of an independent MP. Samtredia – On October 23, Gamgebeli of Samtredia Koba Kandelaki resigned and Sakrebulo meeting was scheduled the following day in an expedited manner. Despite much turmoil and protest on the end of Sakrebulo’s members from opposition parties and activists, former majoritarian MP from UNM Avtandil Sturua was elected to the vacant office. Representatives and supporters of the Georgian Dream invaded the municipality building, demanding resignation of Gamgebeli. They were protesting by blocking the buildings of Gamgeoba and Sakrebulo for a week. They set up a corridor of shame for Sturua. In November 2012 member of Sakrebulo Koba Dzidziguri filed a 27-point lawsuit in court claiming that Sakrebulo Chairperson and Gamgebeli had been elected illegally. The trial was held on November 15 where Avtandil Sturua was questioned but the proceedings were postponed. On December 11, district court suspended authority of Avtandil Sturua in his capacity as Gamgebeli. Avtandil Tadumadze is now serving as acting Gamgebeli. Kharagauli – in late October, Gamgebeli of Municipality Tornike Avalishvili submitted a resignation letter. There was a commission set up at Sakrebulo for admission of applications for the vacant position of Gamgebeli. Notably, newly elected majoritarian MP of Kharagauli Nodar Ebanioidze filed against Gamgebeli in the office of the prosecutor, demanding determination of lawfulness of spending of GEL 15 000 transferred by Avalishvili from Kharagauli Budget for rehabilitation of official vehicles damaged during a car crash. Sachkhere – since late September the office of Municipality Gamgebeli had been vacant as incumbent Zurab Tsertsvadze was running in parliamentary elections. During September 28 meeting of Sakrebulo, representative of the Georgian Dream Ivane Goshadze was elected as Gamgebeli with majority of votes.

6 On October 30, twelve out of the thirteen community representatives submitted letters of resignation. According to them, representatives of the Coalition were saying that the new power had arrived and therefore, new representatives had to be appointed. The only community representative that was not affected by the changes was Sairkhi community representative who, according to other community representatives, enjoys close relations with the coalition. At the November 15 Sakrebulo meeting twelve out of the twenty-two members of Sakrebulo voted for removal of Sakrebulo Chairperson Nodar Abzhandadze. The motion had been raised in Sakrebulo by supporters of the coalition Georgian Dream. Nodar Abzhandadze was accused of abusing the municipal budget. Abzhandadze himself has rejected the allegations, stating that his removal is politically motivated. Eight members of Sakrebulo from the UNM did not participate in the voting. The UNM lost majority in Sakrebulo composed of 22 members after they lost nine members to the minority. Representative of the Republican Party Inga Zambakhidze assumed the position of Sakrebulo Gamgebeli. Akhmeta – in late October Chairperson of Sakrebulo Municipality Aleksi Mailashvili resigned due to political changes. Similarly, Gamgebeli Koba Maisuradze submitted a letter of resignation. At the November 7 meeting of Sakrebulo, member of the Georgian Dream Zakaria Kinkladze assumed the position of the Chairperson. Members of Sakrebulo removed Jarap Khangoshvili from the position of Deputy Gamgebeli and replaced him with former chairperson of Sakrebulo Aleksi Mailashvili. On November 19, Beka Baidauri was appointed acting Gamgebeli effective before announcement of competition. His candidacy was recommended by majoritarian MP Zurab Zviadauri attending the meeting. Following his appointment as acting Gamgebeli, a 25-year old Beka Baidauri demanded that all employees of Gamgebeli submit letters of resignation, explaining that changes in staff had to do with structural reorganization, and that employees could maintain their positions after passing exams. Poti – on August 3 Mayor of Poti Vakhtang Lemonjava resigned as he was running in parliamentary elections. Sakrebulo did not announce a competition for filling the vacant position. On October 31 activists of the Georgian Dream staged a protest rally outside Poti City Hall, demanding appointment of the Georgian Dream’s candidate as Mayor. Amid the protest, Majoritarian MP of Poti Eka Beselia met with Sakrebulo Chairperson and members, saying that Sakrebulo should make a decision in consideration of people’s will and that it should announce a competition to allow everyone to participate. 13 Chairperson of Poti Sakrebulo Vano Saghinadze said that the protest rally outside the administrative offices constituted a pressure against Sakrebulo. Eventually, on November 7 Sakrebulo extended the term of authority for Davit Khomeriki, Acting Mayor of Poti, for one more year. The ordinance has been appealed in court. On December 6, Chairperson of Poti Sakrebulo Ivane Saghinadze resigned from his office. He stated that he had made the decision himself, in view of the new reality. He also explained that he had not been subjected to any pressure and remains to be a member of Poti Sakrebulo.

13 http://www.youtube.com/watch?feature=player_embedded&v=s4MYUUJO4I8#! http://www.youtube.com/watch?feature=player_embedded&v=Rc4VPfEIfFw#! 7 On December 17, supporters of the Georgian Dream invaded the building of Poti Sakrebulo and disrupted the meeting convened to elect the chairperson. Majority of Sakrebulo was planning to approve the candidacy of the UNM’s member, Davit Babilua for the position of the chairperson, which intimidated supporters of the Georgian Dream. Following a verbal confrontation and a clash, the meeting was postponed. Part of the population refused to leave the building, fearing that the meeting would be covertly held. According to the acting chairperson, activists of the Georgian Dream exerted pressure against them and they had to call the police. During the December 18 meeting, majority of members in Poti Sakrebulo supported the candidacy of Davit Babilua for the position of the chairperson. Representative of the Georgian Dream Mogeli Tkebuchava did not participate in the voting. He accused members of Sakrebulo of committing a violation and left the meeting. During the very same meeting, member of Poti Sakrebulo and former candidate for the position of majoritarian members of Sakrebulo, Tengiz Sarishvili announced that he was leaving the UNM, planning to establish a new faction called Majoritarians, together with four other majoritarian members of Sakrebulo. Zestaponi – on November 1, Gamgebeli of Zestaponi Givi Arabidze submitted a letter of resignation. Sakrebulo meeting was convened on November 2 in expedited manner and the office was assumed by former majoritarian member Kakha Getsadze from the UNM. The very same day, local population assembled outside the offices of Gamgeoba and demanded access to Sakrebulo meeting. They were particularly intimidated by the arrival of MP Akaki Minashvili in Sakrebulo, who sat next to the Chairperson, Merab Maskharashvili. A break was announced due to the verbal confrontation. After the meeting was resumed Sakrebulo Chairperson put candidacy of Kakha Getsadze for the position of Gamgebeli to vote in expedited manner and approved his candidacy with majority of votes. According to employees of office of correspondence at Zestaponi Gamgeoba, they submitted letters of resignation following the parliamentary elections at their own free will; however, no one has yet been dismissed but rather, they continue to work as usual. On November 29, Zestaponi Gamgebeli Kakha Getsadze was arrested by the office of the prosecutor. He was charged under para.3 of Article 239, para.3 of Article 118 and para.1 of Article 187 of the Criminal Code of Georgia. Investigation was launched into alleged “hooliganism committed with the use of a firearm”, “inflicting less severe intentional damage to health” and “damaging another person’s property”. Kutaisi City Court ordered GEL 20 000 in bail as a preventive measure. Deputy Gamgebeli Amiran Kvetenadze was serving as an acting Gamgebeli of Zestaponi. Starting from December 11, responsibilities of acting Gamgebeli were assumed by member of the Georgian Dream Nugzar Kamushadze. Tetritskaro – Zurab Tsiklauri, member of Sakrebulo from the UNM was elected as a new governor of Tetritskaro on November 2. The position became vacant after former Gamgebeli Giorgi Daushvili was appointed to the office of Bolnisi Municipality Gamgebeli in July. On November 12 around fifty activists of the Georgian Dream assembled outside the municipality building for picketing. Participants demanded resignation of Sakrebulo Chairperson Gia Mestvirishvili and Gamgebeli Zurab Tsiklauri, accusing them of election and financial frauds.

8 According to Gia Mestvirishvili, it had been a week after appointment of a new Gamgebeli based on competition; however, they were demanding resignation of all twenty village Gamgebelis. Picketing stopped only in the second half of the day. The following representatives of parliamentary minority Pavle Kublashvili, Goga Khachidze, Irma Nadirashvili and David Bezhuashvili arrived in the district but were not let in the building by protesters. There was a verbal confrontation and a clash between minority leaders and party activists. Gamgeoba could resume is work only after the police managed to free the building from picketers. Khoni – Deputy Chairperson of Sakrebulo, Rezo Partskhaladze left the UNM on November 5, citing recent developments as the reason. Official authority of Sakrebulo Chairperson Giorgi Gelenidze has been suspended. On November 28 Kutaisi City Court ordered him to pay GEL 7 000 in bail. He has been charged with abuse of official authority and state funds. On November 30, an extraordinary meeting of Sakrebulo was convened in relation to suspension of Giorgi Gelenidze’s official authority. Before the start of the meeting there were reports that the meeting had been scheduled to elect new Chairperson. Therefore, activists of the Georgian Dream assembled outside the building of Sakrebulo, demanding postponement of the meeting. Peaceful assembly grew into a confrontation. Sakrebulo employees and members got involved in the clash. Currently Rezo Partskhaladze is serving as an acting chairperson of Sakrebulo. Sagarejo – former Chairperson Gela Chalatashvili was running in parliamentary elections for the position of majoritarian MP and therefore, he submited a resignation letter. On November 5, candidate nominated by the Georgian Dream Giorgi Loladze assumed the responsibilities of Gamgebeli. Telavi – On November 7 municipality Gamgebeli Nugzar Khutsaidze submitted a letter of resignation, citing transfer of power in the government as the reason. Zurab Kurashvili, head of the Georgian Dream’s office in Telavi Office was appointed acting Gamgebeli on November 9, effective before announcement of the competition. He demanded that all employees of Gamgeoba submit resignation letters, without dating the letters. According to Kurashvili, Gamgeoba has an excessive number of employees and therefore, he plans reductions in staff. According to the Head of Gamgeoba Office Medea Kekelia, changes in staff are anticipated amid the ongoing reorganization in Gamgeoba. As of now, employees continue to work as usual. Akhaltsikhe – Chairperson of Sakrebulo Malkhaz Gikoshvili resigned in November by submitting a letter of resignation; however, he remains to be the member of Sakrebulo. On November 9, member of the newly established faction Georgian Dream Akhaltsikhe, Oleg Sandroshvili was elected as Sakrebulo Chairperson. Currently, the faction holds majority in Sakrebulo. On November 22, Gamgebeli of Akhaltsikhe Municipality Gela Demetradze resigned. According to Sakrebulo Chairperson Oleg Sandroshvili, Gamgebeli had decided to resign due to difference of opinion. At the December 7 meeting, Besik Khitarishvili was appointed acting Governor for the period of three months. His candidacy was supported in secret ballot by sixteen out of twenty-four members of Sakrebulo (Khitarishvili used to serve as head of the second division of the Ministry of Internal 9 Affair’s operative and technical department in 2004-2008. In 2008-2009 he served as an invited expert in legal issues in public defender’s office). Acting Gamgebeli of Akhaltsikhe Municipality Besik Khitarishvili announced that he had plans to form a fusion administration. On December 12 he nominated three deputies, Avtandil Teliashvili, Zaza Khutsishvili and Tamar Gogoladze. According to Gamgeoba former deputies had resigned after submitting personal letters of resignation. Tsalka – on November 13 representatives of the Georgian Dream and part of the population staged a protest rally outside the building of Tsalka Municipality, demanding resignation of Gamgebeli. They had blocked the entrance. In addition to resignation of Gamgebeli Mikheil Tskitishvili, protesters also demanded resignation of all of Gamgeoba staff. One of the activists of the Georgian Dream who was intoxicated invaded the building, followed by other activits; however, they soon left the bulding. Amiran Saginadze, who had left the UNM for the Georgian Dream, joined the rally participants. Zurab Iakobidze and Mikheil Jakeli also submitted notices about leaving the faction. The rally demanding resignation of Gamgebeli in Tsalka continued for almost a week. On December 3-4, local population in Tsalka resumed protest rallies, demanding verification of financial documents and personal property of Gamgebeli. They were accusing Gamgebeli of taking illegal ownership of 1500 hectares of land and misspending funds. Tskitishvili rejected the allegations and accused the authorities of exerting a pressure against self-government units. He also said that he would not object to financial verification; however, it was impossible for him to continue serving as Gamgebeli amid permanent protest rallies and pressure. On December 6, due to the tense situation in the district Municipality Gamgebeli Mikheil Tskitishvili submitted a letter of resignation to Sakrebulo. Otar Khutaishvili has been appointed acting Gamgebeli. On December 7, based on the verdict of Rustavi City Court, financial police launched inspection of Tsalka Municipality. Sakrebulo Chairperson explained that they requested all documents about infrastructural works carried out from 2004 to 2012. On December 14, supporters and activists of the Georgian Dream staged a protest rally outside Sakrebulo demanding resignation of Sakrebulo Chairperson Davit Machitidze. Later, participants invaded the building. According to Sakrebulo Chairperson Davit Machitidze, he will not resign until the Ministry of Finance’s investigating service completes its financial monitoring in Tsalka Municipality. The meeting also addressed and approved establishment of new factions - the Georgian Dream and Chveni Tsalka. Batumi – on November 19 a new faction – Majoritarian - was established in Batumi Sakrebulo. The faction consists of three members of Sakrebulo. On November 22 three other members left the UNM’s faction in Batumi Sakrebulo and now continue to work as independent members. Following the elections Acting Mayor of Batumi, Vice Mayor Jemal Ananidze was elected by Sakrebulo as Batumi Mayor. On December 1, head of the information center for combating of corruption in Georgia, Merab Gogoberidze invaded the building of Sakrebulo with a withered rose in his hand. The verh same day

10 he started a hunger strike with other fellow sympathizers of the Georgian Dream. They stopped the hunger strike on December 5 upon request of the clergy. Meeting of Batumi Sakrebulo on December 18 was rather noisy. Chairperson of faction For Batumi Irakli Chavleishvili demanded that initiatives aimed at increasing number of employees be removed from the agenda. One of the issues that members of Sakrebulo did not endorse was establishment of a tourism agency in Batumi City Hall. According to Chavleishvili, by setting up new offices in the City Hall the UNM was going to provide employment opportunities for their members. Chiatura – Gamgebeli of Chiatura, Gogi Chikviladze was running in the parliamentary elections. Zurab Ketiladze assumed responsibilities of acting governor. On November 20, Municipality Sakrebulo nominated Sulkhan Makhatadze, a representative of the coalition Georgian Dream for the position of Gamgebeli. Twenty-five members of Sakrebulo unanimously supported Sulkhan Makhatadze. There were no other staff changes in Sakrebulo; however, in light of the political changes, population of the village is seeking to replace their respective community trustees. Tskaltubo – on November 21, a petition signed by eleven citizens was filed in Tskaltubo Sakrebulo, requesting holding of an extraordinary meeting and resignation of Sakrebulo Chairperson Mamuka Saghareishvili. The opposition protested November 22 extraordinary meeting. It was attended by Sakrebulo Members from the UNM only. Despite the lack of quorum, term of office of Sakrebulo Chairperson was extended for three more months. After the Georgian Dream won the elections, former members of the UNM in Tskaltubo Sakrebulo established several factions. The newly established factions are as follows: Sazogadoeba Tskaltuboeli, Georgian Dream – Tskaltubo, Tskaltuboeli and Imedi. Members of the latter view themselves as not affiliated to any political group. Tskaltubo Sakrebulo has 25 members with majority held by the UNM. Lentekhi – on November 21 Lentekhi Gamgebeli Roman Mukbaniani submitted a resignation letter, explaining that he did not want to cause any inconvenience for the newly elected parliament and the new government. Therefore, he thought that it was only logical for him to resign. After leaving his office, Mukbaniani remained to be the chairperson of the UNM’s office in Lentekhi. The following day representative of the Republican Party Soso Mukbaniani was elected as Gamgebeli. On November 26 local population protested appointment of new Gamgebeli, as competition had not been announced. They were also protesting against the candidacy of the Gamgebeli himself. They stopped rallying soon and Gamgeoba continues to work as usual. Tsageri – Gamgebeli Bezhan Ghurchumelidze submitted a letter of resignation following the elections. On November 22, Tsageri Sakrebulo appointed Mamuka Chachkiani, member of the Georgian Dream and a former candidate for the position of majoritarian member of Sakrebulo to the position of acting governor. The candidacy was not supported by faction Georgian Dream Republicans and Deputy Chairperson of Sakrebulo Bela Saghinadze. According to her, nomination of Mamuka Chachkiani had not been coordinated with member parties of the coalition and therefore, his appointment as Gamgebeli was unacceptable to her. As to Sakrebulo, vacant position of Chairperson was occupied by Bela Saghinadze from the Republican Party. Martvili – on November 26, local population and members of the Georgian Dream assembled outside offices of Martvili self-government, demanding resignation of Gamgebeli Mamuka Danelia 11 and Sakrebulo Chairperson Zaal Gorozia. Later participants invaded the building of Gamgeoba, which paralyzed Gamgeoba and resulted in damage of some of the equipment. The first floor windows were shattered and Gamgebeli’s chair was thrown by protesters out of the window. Participant left the building only after the police interfered. Hunger strikers continued to protest. Although they have terminated the hunger strike, the office remains paralyzed and negotiations have been unsuccessful. On December 19, almost a month-long picketing outside Gamgeoba of Martvili District was finished. Rally organizers and local authorities could reach an agreement following negotiations. As a result, local authorities continue their daily work. Kaspi – on November 26, Gamgebeli of Kaspi Municipality Sakrebulo Kakha Khachirashvili was removed from office. One of the leaders of the Georgian Dream’s local office, Oleg Iadze was appointed acting Gamgebeli. According to Khachirashvili, he had no intention to resign willingly. Replacement of Gamgebeli was followed by replacement of heads of all departments as well as village trustees. According to Oleg Iadze, around 40% of employees will have to leave their work. On December 9, following appointment of Soso Shughliashvili as a representative of territorial unit by Oleg Iadze a dispute ensued. Activists of the Georgian Dream from Kvemo Chala were pushing for another candidacy, Tinatin Gakheladze. The confrontation of fellow villagers continued for about half an hour. UNM members are holding majority in Sakrebulo, whereas opposition is represented by the only member, Khatuna Tatanashvili. Davit Mesropashvili, member of the UNM, remains to be the Sakrebulo Chairperson. Lagodekhi – former chairperson of Sakrebulo, Giorgi Gozalishvili became majoritarian MP of Lagodekhi. Currently, member of the UNM Davit Bakashvili is serving as the chairperson. He used to be a deputy chairperson before. At the meeting of Sakrebulo held on November 26, letter of resignation submitted by Lagodekhi Municipality Gamgebeli Dimitry Loladze was granted. Ioseb Tkemaladze, Second Deputy Gamgebeli, is now the acting governor. The deadline for submission of applications for the position of Gamgebeli was December 7. There were total of 126 applicants. On December 20 a meeting of the competition and certification commission was held in Lagodekhi Sakrebulo. At the meeting 7 shortlisted candidates testified before the commission. Eventually, the commission will present one candidate to Sakrebulo for its consideration. Sighnaghi – following the elections, on November 26, Sakrebulo Chairperson Zaza Zedelashvili resigned by submitting personal letter of resignation, citing family commitments as the reason. Newly elected chairperson is Zaza Mchedlishvili, member of Sakrebulo from the UNM. On November 30, Gamgebeli of Sighnaghi Municipality Vazha Jankarashvili resigned for personal reasons. He is a member of the UNM and had been appointed to the position a month before. Ramaz Popiashvili was elected as the new Gamgebeli. Although Sakrebulo had not announced a competition for the vacant position of Gamgebeli, Ramaz Popiashvili submitted an

12 application anyways and his candidacy was supported. The new Gamgebeli appointed activists of the Georgian Dream’s election campaign. Ozurgeti – on November 17, new faction Dream was established in Ozurgeti Sakrebulo, composed of three members who were formerly the members of the UNM. On December 3, Acting Gamgebeli submitted a letter of resignation. At the meeting of Sakrebulo held on December 6, one of the leaders of the Georgian Dream Kote Sharashenidze was elected as Gamgebeli. Dedoplistskaro – Municipality Gamgebeli Nikoloz Shanshiashvili and Sakrebulo Chairperson Levan Baghashvili resigned for personal reasons. Resignation letters were also submitted by their deputies and the Head of Gamgeoba Office. At the November 27 meeting Sakrebulo elected Levan Natroshvili (UNM) as Chairperson. On November 28 Irakli Shiloashvili was elected as Gamgebeli by Sakrebulo. He is not affiliated with any of the parties. Sakrebulo meeting was attended by 22 members and his candidacy was unanimously supported. Representatives of the Georgian Dream were appointed to the positions of deputy Gamgebeli and head of the office of Gamgeoba. 14 trustees of territorial units of Dedoplistskaro Municipality submitted letters of resignation. Part of the employees decline to comment, while rest of them states that they had been forced to write the resignation letters. Chkhorotsku – on November 28, Chairperson of Chkhorotsku Sakrebulo Gia Lemonjava (UNM) submitted a letter of resignation, citing the existing situation in other regions as the reason. He explained that he resigned to prevent escalation of the situation in municipalities. During an extraordinary session of Sakrebulo convened on December 4, member of the coalition Georgian Dream Besik Esebua was elected as a new chairperson. At the very same meeting, Gamgebeli Merab Shelia submitted a letter of resignation, stating that he had made the decision in light of the political circumstances, for personal reasons. His decision also had to do with appointment of a new Sakrebulo Chairperson. At an extraordinary session of Sakrebulo on December 11, member of the coalition Georgian Dream Dato Gogua was appointed acting Gamgebeli, Korneli Tsurtsumia was appointed Deputy Gamgebeli. Chkhorotsku Sakrebulo is made up of 23 members. One of its three factions is the UNM composed of 8 members. Gori – on November 30 Gori Municipality Sakrebulo accepted resignation letter of Gamgebeli Davit Khmiadashvili. At the very same meeting, members of Sakrebulo elected Papuna Koberidze, the candidate nominated by the Georgian Dream with majority of votes. According to Sakrebulo Chairperson Zviad Khmaladze, there were only two candidates nominated for the position of Gamgebeli. Papuna Koberidze appointed Davit Gudavadze, Zaza Aduashvili and Nino Tsivtsivadze as new deputies. Gurjaani – Gurjaani Sakrebulo Chairperson Zakaria Iaganashvili and Municipality Gamgebeli Davit Meskhishvili submitted resignation letters at their own free will. During the very same period 10 members of Sakrebulo left for the faction Georgian Dream.

13 Resignation of Gamgebeli was followed by periodic protest ralies in Gurjaani. Participants protested against procedures for election of Gamgebeli and candidates for the position. There were total of eight applications submitted for the opening. On December 6, activists of the Georgian Dream and supporters of the candidate for the office of Gamgebeli, Misha Purtseladze, invaded the office of Acting Sakrebulo Chairperson. They were demanding setting up of a special commission for selecting a candidate as well as appointment of Misha Purtseladze as Gamgebeli. The December 7 meeting of Sakrebulo convened to elect Sakrebulo Chairperson and Acting Governor was invaded by supporters of the Georgian Dream. Following a noise and verbal confrontation, the situation escalated to the extent that Sakrebulo had to terminate the meeting. At the December 10 meeting member of the faction Georgian Dream – Republicans, Avtandil Zardaishvili was elected as Sakrebulo Chairperson, while a representative of the Georgian Dream, Joni Osiashvili was elected as acting governor. Activists of the Georgian Dream protested approval of the candidates, accusing them of making a deal with the UNM. Lanchkhuti – in late November, activists of the Georgian Dream Shota Pirtskhalaishvili was on a hunger strike for several days outside Lanchkhuti Municipality Gamgeoba. He was supported by some of the activists of the Georgian Dream. Although he stopped hunger strike, the protest was continued in a larger scale. In early December, another group of activists supported by the Republicans laid out a tent with the capacity of 200 people. Several people on a hunger strike stayed in the tent, demanding resignation of Acting Gamgebeli Kakha Askurava and Sakrebulo Chairperson Revaz Chitadze, governor and president. As participants clarified, following the elections the power was assumed by a different political force in the country and therefore, subsequent changes in municipal authorities were necessary. The situation has not changed. People in tents outside Gamgeoba continue to protest. On December 7 a competition was announced for a vacant position of Gamgebeli. The competition will be finished by the end of December. A competition and certification commission has been set up for selection of Gamgebeli, manned by 15 members. Khobi – on November 30, a protest rally was stage, demanding resignation of Gamgebeli Goga Ghurtskaia and Sakrebulo Chairperson Mamuka Chokhonelidze. On December 5, Sakrebulo Chairperson Mamuka Chokhonelidze submitted a letter of resignation at his own free will. He did not explain a reason for resignation, only noted that it was his own decision and he had not been subjected to any pressure. On December 6, Gamgebeli of the Municipality Goga Ghurtskaia also submitted a letter of resignation. During an extraordinary meeting held on December 6, members of Sakrebulo elected Mamuka Kardava as a chairperson. He was a manager of the Georgian Dream’s election campaign in Khobi. New chairperson of Sakrebulo accepted the resignation letter of Khobi Gamgebeli Goga Ghurtskaia. During a meeting held on December 14, Sakrebulo elected member of the Georgian Dream, Kakhaber Benidze as Acting Gamgebeli of Khobi Municipality with majority of votes. At the very same meeting, new opposition faction Khobi was established, headed by former chairperson of Sakrebulo Mamuka Chokhonelidze.

14 Senaki – on December 3, Chairperson of Senaki Sakrebulo Besik Narmania made an official statement about resignation. He explained that he had made the decision ar his own free will, in consideration of interests of Senaki population. During the December 7 meeting of Sakrebulo, member of Sakrebulo, Murad Shamatava (Georgian Dream – Free Democrats) was elected as Sakrebulo Chairperson. On December 20, initiative group of the society Senakelebi staged a protest rally demanding resignation of Gamgebeli Tengiz Adamia. Participants were supporting the candidacy of the Georgian Dream’s leader, Gocha Bokuchava for the position of Senaki Gamgebeli. Senakelebi gave Sakrebulo one-month ultimatum to meet their demands; otherwise, they threatened to continue protest rallies. Kazbegi – on December 3, Kazbegi Gamgebeli Davit Ghudushauri submitted an application for resignation, citing deterioration of health as the reason. He had been serving as acting Gamgebeli since July 13, after former Gamgebeli Viktor Sujasjvili resigned at his own free will. On December 8, the Municipality Sakrebulo appointed head of the Georgian Dream’s office in Stepantsminda, Shalva Eloshvili as Acting Gamgebeli, effective before announcement of competition. Other representatives of the Georgian Dream’s office, Givi Kirikashvili and Gia Seturidze were appointed as his deputies. Chairperson of Kazbegi Municipality Sakrebulo Davit Khutsishvili (UNM) resigned for family commitments. Deputy Chairperson Vazha Chkareuli (UNM) has assumed responsibilities of Acting Chairperson of Sakrebulo. Tsalenjikha – on December 5, Chairperson of Tsalenjikha Municipality Sakrebulo Kakhaber Tsimindia and Gamgebeli Mamuka Kardava submitted letters of resignation at their own free will. During an extraordinary meeting held on December 7, Davit Belkania (Georgian Dream) was elected as Sakrebulo Chairperson with majority of votes. According to the Chairperson of Sakrebulo, candidates for the position of Deputy Gamgebeli will be nominated in due time, as prescribe by law. On December 17, during an extraordinary meeting of Tsalenjikha Municipality Sakrebulo, letter of resignation of Gamgebeli Mamuka Kardava was accepted and competition was announced for the opening. Zugdidi – on December 5, representatives of public movement arrived in Gamgeoba, demanding resignation of Zugdidi Municipality Gamgebeli Aleksandre Kobalia and Sakrebulo Chairperson Levan Konjaria; however, Aleksandre Kobalia was out of the office. The meeting could not be arranged the following day either. On December 11, representatives of public movement Tetri Mandili met with the Sakrebulo Chairperson and members to demand voluntary resignation of the latter as well as the Gamgebeli. The meeting was unsuccessful. On December 17, representatives of the public movement Tetri Mandili staged a protest rally outside the building of Sakrebulo, demanding resignation of Sakrebulo Chairperson and Gamgebeli. According to the rally participants, unless municipal officials resign representatives of civil society intend to stage large-scale protest rallies. 15 On December 18, letter of resignation was submitted by Gamgebeli of Zugdidi Municipality Aleksandre Kobalia. Sakrebulo plans to consider the letter in the nearest future. According to Sakrebulo Chairperson Levan Konjaria, he intends to stay in his office and has no plans to resign. On December 20, Sakrebulo accepted Kobalia’s resignation letter. Deputy Gamgebeli Ruslan Kilasonia will assume responsibilities of Gamgebeli, effective before announcement of the competition. Kareli – on December 7, during the Sakrebulo meeting, resignation letter of Kareli Gamgebeli Ilia Burjanadze (UNM) was accepted. He cited family commitments as the reason. Ivane Osadze was elected as a new Gamgebeli. He is a professor of historic sciences at Tbilisi Technical University and applied to Sakrebulo for the position of Acting Gamgebeli. According to Osadze, there will be certain staff changes made in Kareli Municipality Gamgeoba but these changes will in no way be politically motivated. On December 1, during a press-conference held in the office of the UNM, MP Akaki Minashvili announced that financial police had commenced inspection of Kareli Gamgeoba. According to him, representatives of the Georgian Dream were forcing Burjanadze to resign; however, the report of financial police commencing the inspection was not confirmed by the Ministry of Finance of Georgia. According to the December 17 report, all employees and specialists at Kareli Municipality Gamgeoba as well as trustees of 18 territorial units submitted resignation letters. Gamgebeli hismelf plans to make an announcement about the resignations. Vani – on December 7, law enforcement officers arrested Vani Sakrebulo Chairperson Davit Kakabadze. On December 9, Kutaisi District Court ordered him to pay GEL 13 000 in bail as a preventive measure. Kakabadze was arrested over a clash during pre-election period, involving beating of an intoxicated citizen in the UNM’s office in Vani. On December 13, the bail was reduced to GEL 7000; however, the prosecution was demanding increase of the bail up to GEL 15 000. Davit Kakabadze remains in his office and is currently on a vacation. Dmanisi – on December 10, majority faction UNM in Dmanisi Sakrebulo broke up. The UNM had a faction composed of 22 members in a total of 25-member Sakrebulo. 20 members alienated themselves from the faction and set up an independent faction Without a Party. Members of Sakrebulo explain that they made the decision at their own initiative, which Sakrebulo Chairperson Bakur Mgeladze disagrees with and believes that they were forced to leave the faction as a result of pressure exerted by majoritarian member of Sakrebulo Kakha Okriashvili. Members of Sakrebulo state that they had not been subjected to any pressure but rather, formation of a new faction has to do with ongoing political processes in the country. On December 13, supporters and activists of the Georgian Dream staged a protest rally outside Dmanisi Municipality Gamgeoba. Participants demanded appointment of the Georgian Dream’s representatives as Sakrebulo Chairperson and Gamgebeli. At an extraordinary meeting on December 14, 20 members of Sakrebulo who had left the UNM motioned for removal of Sakrebulo Chairperson Bakur Mgeladze from office and elected candidate from faction Without a Party as Sakrebulo Chairperson, Nodar Aduashvili as Sakrebulo Chairperson in a secret ballot. Aduashvili gained 20 votes. 16 Khelvachauri – 9 members of the UNM left the faction in Municipality Sakrebulo made up of 22 members. Sakrebulo Chairperson and one other member became independent members, whereas remaining seven established a faction Forward to the Future. Abasha – on December 10, Gamgebeli of Abasha Municipality Guram Gunava submitted a resignation letter, which was referred to Sakrebulo for consideration. According to Guram Gunava, he had made the decision at his own free will, in view of his advancing age. He also stated that his resignation was not related in any way to cases of Tengiz Gunava, former chief of general inspection. Khashuri – on December 12, Khashuri Gamgebeli Roin Makharoblidze (UNM) submitted a resignation letter later accepted at Sakrebulo meeting. With majority of votes, Giorgi Beraia was appointed Acting Gamgebeli. Sakrebulo members state that Giorgi Beraia has not been affiliated to any party and has never pursued political activities. They also state that Gamgebeli was not subjected to any pressure; however, he had no right to maintain his office following the parliamentary elections. Giorgi Beraia appointed Deputy Gamgebelies and assistants for a three- month probationary period. Adigeni – on December 13, some members of the Georgian Dream and population of the village of Mlashe assembled outside Municipality Gamgeoba to support Levan Lobjanidze, a candidate for the position of Gamgebeli. Some of the Georgian Dream’s activists staged rallies periodically for the period of two weeks, pushing for the appointment of their candidate. Gamgebeli Simon Parunashvili, who has been holding the office since 2009, has not submitted a resignation letter and continues his work as usual. According to Parunashvili, he has no plans to resign at his own will. Another part of the Georgian Dream’s activists support appointment of Mamuka Kukhalashvili as Municipality Gamgebeli. On December 17, a protest rally was staged in Adigeni in support of Ina Kapanadze’s candidacy. There are total of 24 members in Adigeni Municipality Sakrebulo. There are no plans to change staff in Sakrebulo but rather, they continue to work as usual; however, establishment of faction Georgian Dream – Republicans is underway in Sakrebulo. Ambrolauri – on December 13, supporters of the coalition Georgian Dream staged a protest rally in Ambrolauri, demanding resignation of Sakrebulo Chairperson Kakhaber Parjanadze and Gamgebeli Levan Jmukhadze. According to the rally participants, unless their demands are met they will continue picketing. Bolnisi – on December 18, members of the Georgian Dream and around 40 citizens staged a protest rally outside Gamgeoba in Bolnisi, demanding resignation of Gamgebeli and Sakrebulo Chairperson. They were joined by Azebaijani population against Koba Nakopia, Majoritarian MP of Bolnisi. Participants stopped rallying later the same day. Tbilisi – on October 14, 2012, Nino Vashakidze, lead specialist at the Service Department of the Commission for Recognition of Property Rights for Land Plots under the Ownership (Exploitation) of Natural Persons and Legal Persons of Private Law, at the Legal Civil Service of Tbilisi City Hall

17 was dismissed from work. She believes that her dismissal had to do with personal messaging with journalist Shalva Ramishvili on social network. 14 According to Nino Vashakidze, in personal messaging with the journalist she expressed her opinion about the ongoing developments in the country. On October 14, 2012, head of the department Irakli Abesade convened a meeting about this matter. Following the meeting, Nino Vashakidze submitted a letter of esignation. She was convinced that they would dismiss her soon anyways and that it was risky for her to stay in the office. Notably, following the elections ISFED was approached by a former employee of the City Hall, Giorgi Pitskhelauri to provide information about politically motivated dismissals during pre-election period in Tbilisi. Giorgi Pirtskhelauri, former deputy head of Tbilisi City Hall’s Legal Civil Department, submitted a letter of resignation on July 26, 2012, as at that time members of his family symphathized with the Georgian Dream. According to Giorgi Pirtskhelauri, Head of the Legal Civil Department Irakli Abesadze told him to willingly leave his office in view of the fact that his family symphathized with the opposition. Deputy Mayors Davit Alavidze and Shota Khizanishvili demanded the same.

Conclusion Protest rallies of citizens requesting resignation of officials stems from their expectation that following the change in the central authorities it is only natural for changes to also occur in municipal governments, for the Georgian Dream to become a decision-making political force at the local level as well. Such public sentiments have been engendered by their wrongful perception of local self- government’s essence and functions on the one hand, frequently caused by the work that municipal officials pursued; in particular, during the pre-election period self-government officials were widely viewed as representatives of the ruling party and their supporters at the local level, further promoted by the fact that the Election Code grants the status of a political official to Gamgebelis even though they should go through a competitive process of selection for appointment. It is due to the status that they enjoy an unlimited right to campaigning. Moreover, regrettably sometimes self-government officials and public servants perpetrated illegal activities against local population, including dismissals from work, making threats, pressure, misuse of administrative resources, etc. Nevertheless, such precedents in no way justify the illegal pressure and violence in a number of municipalities. Regrettably, the trend continues and the authorities fail to take effective measures for prevention. We believe that the transfer of power in self-governments must be abided by procedures

14 This amounts to an illegal action envisaged by para.2 of Article 159 of the Criminal Code of Georgia; in particular, Disclosure of Privacy of Personal Correspondence, Telephone Conversations or Other Massage by abusing official power, as Nino Vashakidze’s personal communication on social network was intercepted; 18 prescribed by law, and the government of Georgia must ensure that they function in a pressure-free environment. We also believe that the existing situation once more show the necessity of reforming the system of local self-governance to ensure their actual independence and non-interference in issues that fall under their purview. We believe that making offices of Mayors and Gamgebelis elective is one of the ways to build trust in local self-government officials and boost stability of these institutes.