Integration of National Minorities in Georgia INTEGRATION of NATIONAL MINORITIES in GEORGIA
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Policy Papers Integration of National Minorities in Georgia INTEGRATION OF NATIONAL MINORITIES IN GEORGIA POLICY PAPERS TBILISI 2017 The views expressed in this Publication are those of authors and do not necessarily reflect the views of the Netherlands Institute for Multiparty Democracy (NIMD) and OSCE High Commissioner on National Minorities (HCNM). It is prohibited to copy, reproduce or distribute the material for commercial purposes, without the written permission of Netherlands Institute for Multiparty Democracy and OSCE High Commissioner on National Minorities. Translators: Ana Adamia, Ketaven Kiknavelidze, Giorgi Lashkhi Design: Viola Tugushi Cover photo: Gvanca Diasamidze ISBN 978-9941-0-9921-2 © Netherlands Institute for Multiparty Democracy, 2017 © OSCE High Commissioner on National Minorities, 2017 INTEGRATION OF NATIONAL MINORITIES IN GEORGIA 1. ELECTORAL SYSTEMS AND NATIONAL MINORITIES Kristine Margvelashvili, Ana Tsiklauri (Center for Social Sciences) 2. POLITICAL PARTICIPATION OF NATIONAL MINORITY WOMEN IN GEORGIA Levan Kakhishvili 3. SOCIAL AND ECONOMIC STANDING OF NATIONAL MINORITIES IN GEORGIA Diana Bogishvili, Irina Osepashvili (Center for Social Sciences) 4. ACCESS TO INFORMATION FOR NATIONAL MINORITIES IN GEORGIA Diana Bogishvili, Ana Tsiklauri (Center for Social Sciences) CONTENT Preface 7 Levan Tsutskiridze Electoral SYSTEMS AND National MINORITIES by Kristine Margvelashvili, Ana Tsiklauri Executive Summary 9 Methodology 10 Introduction 11 Main Challenges of Political Participation of National Minorities 16 Overview of Electoral Systems: International Experience and Practices 19 Study Findings 25 Recommendations 34 Bibliography 37 POLITICAL Participation OF National MINORITY WOMEN IN GEORGIA by Levan Kakhishvili Executive Summary 41 Introduction 42 Indirect Forms of Political Participation 44 Direct Forms of Political Participation 47 Factors Influencing Political Participation of Minority Women 49 Conclusions and Recommendations 65 Bibliography 69 SOCIAL AND ECONOMIC Standing OF National MINORITIES IN GEORGIA by Diana Bogishvili, Irina Osepashvili Introduction 71 Methodology 73 Review of Current Legislative Framework 74 Study Findings 76 Conclusion and Recommendations 95 Bibliography 99 ACCESS to Information FOR National MINORITIES IN GEORGIA by Diana Bogishvili, Ana Tsiklauri Introduction 105 Methodology 108 Review of Current Legislation Framework 109 Study Findings 112 Conclusion and Recommendations 131 Bibliography 134 7 Preface Dear reader, The Netherlands Institute for Multiparty Democracy (NIMD) helps Geor- gia in creating the political environment where diversity and pluralism are rightly seen as strengthening the country as opposed to representing the destructive gap of polarization and confrontation. Georgia belongs to all of its citizens – irrespective of their differences. This is why the participation of national minority citizens in the country’s social and political life is one of the most important issues in determining our future. In 2014-2016 with financial support of the OSCE High Commissioner on National Minorities (OSCE-HCNM), NIMD worked with political parties to enhance the representation of national minorities, increase their interest in politics and reflect these interests or needs in political party programs. There is a damaged bridge between people and political parties and as our mission, we seek to help Georgian politicians strengthen it. We have conducted a substantial work to realize this mission: NIMD hosted ten meetings of political leaders in Tbilisi – enabling them to discuss the issues that often require a consensus; hosted eight meetings in Kvemo Kartli and Samtskhe-Javakheti to better connect political parties with local population; facilitated a one-month internship program for young ethnic Armenian and Azerbaijani citizens of Georgia at headquarters of political parties and in partnership with the Georgian Public Broadcaster, we developed and aired four TV shows in order to disseminate political party positions and views to the public. With these activities, we have contributed to raising the issue of national minorities’ participation higher on political agenda and facilitated discus- sions on how to resolve related problems. This publication has been devel- oped for this very purpose as well: to offer the expert analysis of existing 8 problems that citizens of Georgia from various regions are facing and to come up with some ideas for solving them. There is a lot more to be done. Considerable efforts will be required from all of us together to build a country where, to paraphrase Martin Luther King, the most important thing will be not the national origin, but the content of one’s character. This is exactly the country and international environment we are aspiring to. Levan Tsutskiridze Executive Director, NIMD Eastern European Neighborhood Office Electoral SYSTEMS AND National MINORITIES Kristine Margvelashvili, Ana Tsiklauri Executive Summary National minorities make up a substantial portion of the entire population of Georgia. However, the level of their participation in social and political life is limited. From the legal perspective, the Georgian legislation and the European Framework Convention for the Protection of National Minorities ensure the equality of opportunities for national minorities. Nevertheless, the quality of minority participation in political decision-making still re- mains a great challenge. The current mixed electoral system fails to ensure the full-fledged politi- cal participation of national minorities. They are underrepresented in the legislature which causes and is also caused by the low level of political participation of national minorities. The electoral system is one of the instruments to ensure participation of national minorities in political life. To this end, there is a need to develop an optimal electoral system and additional mechanisms in the light of Georgia’s political and cultural landscape, to promote maximum partici- pation of every Georgian citizen in socio-political life including national minorities. Diversification of party politics, consistent transition to a pro- portional electoral system and introduction of additional mechanisms dur- ing the transition period are required to achieve these results. This policy paper explores the concerns of Armenian and Azeri minorities identified as a result of the focus group discussions. The low level of their representa- tion is generally determined by the inadequate knowledge of the Georgian language, socio-economic environment, insufficient civic education, and lack of the political participation, as well as the mistrust in electoral and political systems. 10 Electoral SYSTEMS AND National MINORITIES This policy paper provides recommendations for the political parties and the Government of Georgia on how to increase the level of political par- ticipation of national minorities through the electoral system; pointing to the need for the establishment of regional offices of political parties; and recommending the government to offer additional incentives to political parties to promote the national minority participation. 1. Methodology A range of qualitative research methods (desk research, in-depth interviews, focus groups) were used to explore the participation level of national mi- norities in Georgian political life. Initially, a desk research was conducted. In parallel, a schedule for focus groups discussions was developed. The target population of this study are the two largest national minorities (Ar- menians and Azeris) of Georgia. Accordingly, two regions – Kvemo Kartli (City of Marneuli) and Samtskhe-Javakheti (City of Akhalkalaki) the most compactly settled with national minorities were identified for conducting focus groups. In total, four focus groups were conducted: two in Marneuli and two in Akhalkalaki. Each focus group was composed of eight partici- pants with different socio-demographic profiles. The target audience was distributed across the two age groups: 18-40 years old and 41-65 years old. To avoid homogeneity of the focus group participants, in addition to classifying by age categories, they were also selected based on the type of their education (secondary, vocational and higher) and employment status. Each focus group session lasted for approximately one and a half hours and was tape-recorded and transcribed. The transcripts of the records were summarized. The desk-research analysis was followed by fourteen in-depth interviews with the leaders and other members of political parties (Georgian Dream, Free Democrats, Democratic Movement – United Georgia, Labour Party, Republican Party, United National Movement, and New Rights Party) and experts working on minority issues. In addition, the in-depth interviews were conducted with the representatives of the Office of the State Minister for Reconciliation and Civic Equality, the Central Election Commission (CEC) and the Public Defender (Ombudsman). Each interview lasted for one hour and was tape-recorded. KRISTINE MARGVELASHVILI, ANA TSIKLAURI 11 2. Introduction The full-fledged participation of national minorities is critical to democratic state-building. Human rights, freedom of expression and participation play a fundamental role in the process of democratization. Therefore, the state and non-state actors should ensure equal opportunities for all citizens. In view of the Post-Soviet political systems, and Georgian among them, it is extremely important to implement democratic values because of