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Assessment of the Institutional Framework and Performance of Civil Advisory Councils in the Municipalities of Kvemo Kartli Region

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Assessment of the Institutional Framework and Performance of Civil Advisory Councils in the Municipalities of Kvemo Kartli Region Assessment of the Institutional Framework and Performance of Civil Advisory Councils in the Municipalities of Kvemo Kartli Region David Losaberidze Tbilisi 2020 1 Summary This research into the institutional framework and practices of the Civil Advisory Councils (the Councils) of Kvemo Kartli’s municipalities was prepared as part of the UNDP project “Fostering Regional and Local Development in Georgia - Phase 2 (FRLD 2).” The overall objective of the research is to facilitate the development and strengthen the capacities of the Councils in seven target municipalities of Kvemo Kartli region – Bolnisi, Gardabani, Dmanisi, Marneuli, Rustavi, Tetritskaro, and Tsalka – by evaluating their performance and analyzing the legislative framework regulating their work. The research activities included: . Collection of internal regulatory documents and relevant decrees of the target municipalities and analysis of their compliance with the national laws; . Analysis of performance of the Councils based on an exploration of their meeting notes and information gathered through in-depth interviews with stakeholders; and . Identification of the role and engagement opportunities for the Councils in ongoing and future municipal-level projects. The research findings are to be used as a basis for the development of municipality-specific recommendations and guidelines on how to improve the performance and institutional framework of the Councils. These recommendations will also help to facilitate greater engagement of various stakeholders in the work of the Councils, especially those related to local economic development (LED). I would like to express my heartfelt thanks to Mr. Merab Tsindeliani for his assistance in the research process. 2 Contents Summary .......................................................................................................................................................................... 2 Contents ........................................................................................................................................................................... 3 1. Background ................................................................................................................................................................ 4 2. Research methodology and process ................................................................................................................... 6 2.1. The research objective ..................................................................................................................................... 6 2.2. The data collection strategy ............................................................................................................................ 6 2.2.1. Regulatory documents and normative acts ............................................................................................... 6 2.2.2. Interviews ....................................................................................................................................................... 7 2.3. Analysis of the data collected ......................................................................................................................... 7 2.4. The research limitations ................................................................................................................................... 8 3. Review of the legal and institutional framework ............................................................................................... 9 3.1. The legislation ..................................................................................................................................................... 9 3.2 Rustavi Municipality ........................................................................................................................................... 9 3.3 Bolnisi Municipality .......................................................................................................................................... 10 3.4 Gardabani Municipality .................................................................................................................................... 11 3.5 Dmanisi Municipality ........................................................................................................................................ 12 3.6 Tetritskaro Municipality ................................................................................................................................... 13 3.7 Marneuli Municipality ....................................................................................................................................... 14 3.8 Tsalka Municipality ........................................................................................................................................... 14 4. Analysis of practice ................................................................................................................................................ 16 4.1 General situation ............................................................................................................................................... 16 4.2 Rustavi Municipality ......................................................................................................................................... 18 4.3 Bolnisi Municipality .......................................................................................................................................... 19 4.4 Gardabani Municipality .................................................................................................................................... 20 4.5 Dmanisi Municipality ........................................................................................................................................ 21 4.6 Tetritskaro Municipality ................................................................................................................................... 21 4.7 Marneuli Municipality ....................................................................................................................................... 22 4.8 Tsalka Municipality ........................................................................................................................................... 23 5. Communication of the Councils with the LSGs and public ......................................................................... 24 5.1 Practices and challenges ................................................................................................................................ 24 5.2 Raising public awareness about the Councils .......................................................................................... 26 6. Conclusions and recommendations .................................................................................................................. 27 Annex .............................................................................................................................................................................. 30 3 1. Background The active involvement of citizens in the decision-making process is crucial in the course of creating a stable and sustainable environment and pursuing sustainable development goals. Globally, there has been a tendency in recent times to promote and strengthen participatory decision-making. Today, many countries are exploring and introducing different new and complex participatory forms with varying levels of civic engagement. It is becoming more common to embrace a broader understanding of civic participation, one which goes beyond informed citizenship and facilitates citizens’ active engagement in the identification of priorities, as well as the planning, implementing, and evaluation of activities. The importance of citizens’ involvement is reflected in many international norms embodied in various charters, conventions, and recommendations of international organizations. In Georgia’s case, the most relevant of these is the Additional Protocol to the European Charter of Local Self-Government (Utrecht, 16, XI, 2009), which defines the main principles and instruments of citizens’ involvement in CoE member states. Georgia became a signatory to the Protocol in 2019. In Georgia, citizens’ involvement remains remarkably low. Mechanisms of participation are regulated by law and specified in the Local Self-Government Code (Chapter XI – Participation of Citizens in the Exercise of Local-Self Government). These mechanisms include the General Assembly of a Settlement (GAofS), and the right to petition a local authority and the Councils. In addition, the Code sets out transparency and accountability guarantees, such as the requirement for local authorities to proactively publish public information, the right of citizens to attend local-self-government (LSG) sessions, and the responsibility of LSG representatives to report to citizens on the work performed on a regular basis. Despite the above-described legal mechanisms being in place, local stakeholders (LSG, the private sector, civil society organizations (CSOs), and citizens) have limited capacities. Cooperation practices between LSG, businesses, and citizens is quite limited. LSG struggles to effectively deliver basic municipal services and create a favorable environment for investments and to stimulate LED. There are few municipal-level programs and initiatives designed to address the specific needs of various interest groups (especially
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