Context
In the second half of December, practices of legal, administrative, and indirect pressure emerged against civil activists, citizens participating in protest actions, and persons employed in the public sector. The second half of December was marked by the tightening of legislative regulations, as well as by an increase in the practice of detentions and termination of labour relations. Below is an overview of developments that took place in the second half of December, based on information disseminated in the media and publicly available sources, and it may not reflect all cases.
Tightening of laws / legislative amendments: During the reporting period, Parliament adopted two packages of legislative amendments concerning the regulation of assemblies and demonstrations, the increase of administrative sanctions, rules governing service in the police, and the legal framework of public service.
Detentions: Between 11 and 31 December, at least 16 persons were detained under administrative law, while at least 1 person was detained under criminal law.
Administrative proceedings / verbal warnings: As a result of judicial review of administrative cases, at least 4 persons were issued verbal warnings.
Financial sanctions: In administrative proceedings, financial sanctions were imposed on at least 3 persons; the total amount of fines reached GEL 6,700.
Physical violence / ill-treatment: In at least 8 cases, activists alleged physical violence or ill-treatment, including in the context of arrest, transportation, being held at police stations, or during court proceedings.
Seizure of property / personal belongings: In at least 3 cases, detentions were accompanied by the alleged unlawful seizure or non-return of personal belongings, including mobile phones.
Retention, or non-return of property/personal belongings: At least 3 distinct practices were identified, including summoning activists for questioning or “interviews,” the use of migration mechanisms against foreign nationals participating in protests, and pressure on persons employed in public service. At least 24 persons employed in the public sector had their employment contracts terminated or not renewed.
11 December
In the Parliament of Georgia, “Georgian Dream” supported in the first reading a package of legislative amendments that included regulation of pyrotechnics and amendments to the Law on Police. The amendments initiated within the package envisaged placing the import, export, production, and sale of pyrotechnic products under a special permit regime. In addition, pyrotechnics were added to the list of items that would be prohibited to possess during demonstrations. The amendments to the Law on Police included in the same package regulated the rules for recruitment to the police, including the possibility of appointment without a special competition under conditions determined by an order of the Minister.
On 11 December, non-governmental organizations disseminated a joint statement, according to which the police were forcibly taking some citizens for questioning. The practice described in the statement was assessed as a possible mechanism of pressure. The organizations also indicated that, in some cases, lawyers were not given the opportunity to meet with the persons concerned.
On the same day, information was disseminated that foreign nationals participating in protest actions were being summoned to the Migration Department. According to the Social Justice Center, based on information received in recent days through the hotline of the legal aid network of non-governmental organizations, foreign nationals participating in protest actions were being summoned to the Migration Department. In parallel, according to reported information, one of the persons who appeared at the Migration Department was forced to leave the territory of Georgia through another country. The organization noted that the expulsion of foreign nationals from the country for participating in peaceful demonstrations does not comply with national legislation and international standards.
On 11 December, in Bolnisi Municipality, public school teacher and civil activist Pikria Epitashvili was attacked. According to reports, an unknown person approached Epitashvili and cut her in the facial area with a razor. Information about the incident was initially disseminated on social media. Epitashvili herself publicly stated that she had received medical assistance and that an investigation had been launched into the incident. In her published statement, the incident was assessed as an act of violence and intimidation linked to the ongoing developments in the country and to her civic position.
12 December
Guram Khutashvili was arrested on 11 December. He is charged with damaging 112 surveillance cameras, which provides for imprisonment from 3 to 6 years. The accused remains in pre-trial detention despite his confession, remorse, and readiness to compensate for the damage. According to the defence, under these circumstances, the use of detention has a punitive character. According to the case file, the accused states that damaging the cameras had not been his aim. Guram Khutashvili’s case was joined with the case of Daniel Mumladze, who was arrested on 9 December. Although the cases concern the qualification of a group offence, the court hearings on the imposition of preventive measures were held separately. The merits hearing will proceed in one set of proceedings.
On 12 December, in Tbilisi, Rondeli Foundation researcher Vato Bzhalava was detained under administrative-offence proceedings on the basis of Article 173 of the Code of Administrative Offences: disobedience to a police order. According to reports, he was taken on Irakli Abashidze Street while walking his dog. According to the defence, after the detention, possible physical violence was used against Bzhalava at the police station and he was asked to provide the password to his phone. The administrative offence protocol referred to resistance; however, according to disseminated video footage, the detained person followed law enforcement officers without resistance.
In Tbilisi, poet Zviad Ratiani was attacked near the entrance of his residential building. According to him, several persons physically assaulted him, as a result of which he sustained injuries. Ratiani had previously been detained under administrative-offence proceedings at the protest action on 29 November. The court sentenced him to 8 days of administrative detention, and he was released on 9 December.
13 December
The Parliament of Georgia adopted amendments to the Law on Public Service under an expedited procedure, in three readings. The amendments concerned the rules for appointment to vacant positions, mechanisms for the evaluation of civil servants, and the regulation of reorganization. The law determined that heads of primary structural units and their deputies would become persons employed under administrative contracts. According to government representatives, the amendments do not automatically result in the termination of service relations, and after reorganization, the results of a competition will determine the status of employees.
The amendments were critically assessed by lawyers and civil society. According to the assessments expressed, the new regulations reduce labour protection guarantees for public servants, change evaluation rules, and limit the effectiveness of judicial control. According to non-governmental organizations, including GYLA, the amendments weaken mechanisms for the protection of rights and increase the risk of politicization of public service. The Public Defender also criticized both the legislative process and the content of the adopted norms, particularly with regard to the abolition of reinstatement rights for persons dismissed on the basis of reorganization.
On the same day, the Parliament of Georgia adopted, under an expedited procedure, a package of legislative amendments that significantly changes regulations related to assemblies and demonstrations, administrative sanctions, and rules of service in the police. The package combines amendments to several laws, including the Law on Assemblies and Demonstrations, the Code of Administrative Offences, and the Law on Police.
The amendments prohibited participants of an assembly or demonstration from carrying pyrotechnics, laser devices, or devices with sharp radiation, as well as from covering the face with a mask or other means. The law determined that the list of persons for whom covering the face will be permissible will be established by the Minister of Internal Affairs. These restrictions will enter into force immediately upon publication.
The amendment to the Law on Police determined that the rules and conditions for recruitment to the police without a special competition will be established by an order of the Minister.
The amendments to the Code of Administrative Offences significantly increased fines for various offences, including violations of the rules on assemblies, vandalism, and actions related to blocking roads. The legal grounds for administrative detention and the confiscation of items were also expanded.
The Georgian Young Lawyers’ Association assessed these amendments as legislative initiatives of an undemocratic and repressive nature.
14 December
Tbilisi City Court sentenced Vato Bzhalava to 4 days of administrative detention. He had been detained in Tbilisi on Irakli Abashidze Street on 12 December, on the basis of Article 173 of the Code of Administrative Offences. At the court hearing, Bzhalava stated that he had not resisted law enforcement officers during the detention. According to him, at the police station, one of the officers physically assaulted him and demanded the code to his mobile phone.
According to the party “Droa,” party member and political activist Niko Kvatsabaia was detained under administrative-offence proceedings. Initially, the party indicated that his whereabouts were unknown. Later, according to the lawyer, it was confirmed that Kvatsabaia had been detained under administrative-offence proceedings on the basis of Article 173 of the Code of Administrative Offences. He was transferred to the Dighomi detention facility. According to the defence, the detained person had no injuries.
15 December
According to the lawyer, activist Niko Managadze was detained under administrative-offence proceedings on the basis of Article 173, paragraph 1, of the Code of Administrative Offences. According to reports, the detention took place on Kostava Street in Tbilisi, when he was returning from a protest. According to the defence, Managadze was detained by persons dressed in civilian clothes. According to the lawyer, after the detention, one of the persons entered where he was held and was rudely asking him why he went to protests and how long he intended to continue doing so. In addition, a few hours before the detention, Managadze had been summoned by the Ministry of Internal Affairs for questioning. The activist refused to appear at the department and requested questioning before a magistrate judge.
16 December
On 16 December, a number of statements were disseminated through the media and social networks, according to which demonstrators indicated that, during detentions and the dispersal of protests, their personal belongings, including mobile phones, had been confiscated. Some respondents described cases in which, according to them, the confiscation of items took place without any procedural documentation and by unidentified, often masked, persons. Demonstrators, including Giorgi Bregvadze, Besik Liparteliani, Gia Jvarsheishvili, and Salome Zandukeli, spoke about this practice. Activists also stated that, through special applications, the location of their devices was being registered near administrative buildings of the Ministry of Internal Affairs.
Non-governmental organizations publicly assessed this practice as possible cases of unlawful confiscation or appropriation and indicated that, in the event of a legal assessment, such actions may contain elements of both property-related and official misconduct offences. According to them, in some cases the confiscation of items was not reflected in the relevant protocols, while the victims did not have their belongings returned after release.
The Ministry of Internal Affairs denied the allegations disseminated and stated that the police acted within the powers granted by legislation. According to the agency, on the basis of the Law on Police and the Code of Administrative Offences, the police have the right, in cases provided for by law, to temporarily confiscate an item from a person. According to the Ministry, personal belongings lawfully confiscated are returned to detainees immediately upon release.
The court hearing in the case of Davit Gogilashvili was held on 17 December. Gogilashvili is detained on the basis of Article 173 of the Code of Administrative Offences, which concerns disobedience to a police order. He was detained at a protest action on 30 November. According to media reports, after the detention, Gogilashvili was transferred to a medical facility; he had a head trauma and injuries to the face. Gogilashvili indicates that physical violence was used against him during the detention. According to him, he was detained by the special-purpose unit, severely beaten, locked in a minibus for 9 hours while bleeding, and ultimately robbed as well. Despite these circumstances, law enforcement bodies allege that he committed an administrative offence.
19 December
A court hearing was held at Tbilisi City Court in the case of protest participant Giorgi Chutkerashvili. He was found to have committed an administrative offence under Article 173 of the Code of Administrative Offences and was fined GEL 2,000.
At the court hearing, Chutkerashvili stated that he had been detained on 2 December at the ongoing protest action on Rustaveli Avenue. According to him, the detention was carried out by members of the special-purpose unit. Chutkerashvili indicated that, during the detention, he was subjected to physical violence and ill-treatment. According to him, as a result of the detention he developed health problems, including deterioration of eyesight; he lost 20% of his vision. Chutkerashvili also stated that the injuries indicated in the official documentation did not reflect his actual condition.
Tbilisi City Court fined disability rights activist Gia Jvarsheishvili GEL 2,200 for disobedience to a police order. Jvarsheishvili was detained on 2 December on Besiki Street in Tbilisi. At the court hearing, he stated that, during the detention, he was subjected to physical violence, verbal abuse, and threats. According to him, these actions were carried out by law enforcement officers.
When Jvarsheishvili was making statements about the violence, the judge noted that these issues did not fall within the subject matter of the administrative offence hearing and indicated that the relevant agency should be addressed for a response to possible ill-treatment. According to information previously disseminated in the media, Jvarsheishvili indicated that, as a result of the detention, he sustained injuries to his health. According to the same reports, he also spoke about the confiscation of personal belongings.
20 December
According to the non-commercial legal entity “Gori Photographers’ Club,” Gori Municipality City Hall requested the termination of the contract concluded with them a few days after the opening of the installation “A City at War Does Not Apologize.” According to the organization, the termination of the contract is linked to their creative activity and freedom of expression. The club did not agree with the City Hall’s decision and announced the initiation of a legal dispute.
Later, Gori Municipality City Hall disseminated an explanation, according to which the contract was terminated on the basis of the conditions provided for in the contract. According to City Hall, the municipality had the right to terminate the agreement, while the reason for the decision was identified as the plan to establish an innovation centre in that space.
Davit Akhalkatsi, representative of the Akhaltsikhe office of the party “Akhali” and a political activist, was detained under administrative-offence proceedings. According to the Ministry of Internal Affairs, he was detained on the basis of Articles 116 and 173 of the Code of Administrative Offences, which concern petty hooliganism and disobedience to a lawful order of a law enforcement officer. According to media reports, before the detention, a verbal confrontation was recorded between Davit Akhalkatsi and the Deputy Mayor of Akhaltsikhe. According to reports, the incident occurred during a New Year event.
23 December
Tbilisi City Court found Saba Kevkhishvili, who had been detained during the protest actions, to be an administrative offender and issued him a verbal warning. He was accused of committing an offence under Article 173 of the Code of Administrative Offences, which concerns disobedience to a lawful order of a law enforcement officer. Kevkhishvili was detained on 1 December. According to Kevkhishvili, after the detention, physical and verbal violence was used against him. According to the Social Justice Center, “as a result of severe physical assault by masked special-purpose officers, he had injuries in the facial area — fractures of the nasal and jaw bones, as well as of the eye socket, and a concussion.”
Tbilisi City Court imposed a verbal warning as an administrative liability measure on actor Giorgi Bakhutashvili, who had been detained at a protest action. At the court hearing, Bakhutashvili explained that his detention took place in circumstances where he was calling on a police officer not to detain a citizen who was unwell. According to him, he did not enter into physical contact with the law enforcement officer and only addressed him verbally. Bakhutashvili stated that the detention took place precisely during this episode.
26 December
According to reports, the labour contracts of some employees working at the National Agency for Crime Prevention, Execution of Non-Custodial Sentences and Probation were not renewed from 2025. According to the Ministry of Justice, contracts were terminated for approximately up to 10 employees.
Social workers Ana Endeladze and Mariam Siradze publicly stated that their contracts had been terminated. According to them, the decision was unexpected and they did not receive relevant written justification. Both indicated that there had previously been no disciplinary or professional complaints against them.
A public statement was also made by mediator Giorgi Abuladze, who linked the termination of his contract to his political position. According to him, the agency did not renew contracts with three mediators.
According to the Social Workers’ Union, the termination of contracts affected several social workers. The organization considered the process suspicious and pointed to possible politically motivated decisions. For their part, the Ministry of Justice and the agency denied political motivation and stated that the decisions were linked to the expiry of short-term contracts.
On the same day, Giga Sopromadze, coordinator of disability programmes at Tbilisi City Hall, who had worked in this position for approximately 8 years, was dismissed from his job. According to documents publicly disseminated by him, the basis for the termination of the contract was the absence of the need for a non-staff position. The document states that the programmes implemented by City Hall already have coordinators, and therefore the existence of this position is no longer necessary. The order terminating the contract was signed by Kakha Kaladze. For his part, Giga Sopromadze stated that the decision was unexpected for him and that he had not previously received any complaints related to his professional activity. Later, on 27 December, Tbilisi Mayor Kakha Kaladze stated that Sopromadze’s dismissal had not been politically motivated. According to him, Sopromadze was a non-staff employee employed under a contract; the term of his contract had expired and there was no longer a need to renew it. According to publicly available information, Giga Sopromadze participated in ongoing protest actions and publicly expressed his position.
The organization Partnership for Human Rights responded to insulting and threatening messages disseminated on social media against disability rights activist and human rights defender Tatia Datashvili. According to reports, Tatia Datashvili stated that Facebook user Marina Kirtadze had disseminated insulting statements against her and sent her threatening voice messages. According to Datashvili, these actions were linked to her civic position and human rights work. According to the Partnership for Human Rights (PHR), Datashvili received insulting and threatening messages because of her activism and publicly expressed position. The organization addressed law enforcement bodies regarding this fact and requested an appropriate response.
27 December
According to the organization “Sapari,” they will provide legal assistance to Women’s March participant Ketevan Meskhi, who, according to reports, became a victim of physical violence on 25 December at Orbeliani Square. According to reports, the incident occurred during the Women’s March. According to available information, an unknown person verbally insulted participants of the march, after which he physically assaulted Ketevan Meskh. According to the victim, she sustained bodily injuries.
Former Tbilisi City Hall employee Nino Kiknadze publicly stated that the municipality terminated her labour contract. According to her, she was informed of the decision on 27 December and was told that her contract would no longer be renewed from 1 January 2025. According to Nino Kiknadze, the termination of the contract is linked to her publicly expressed political position. Kiknadze indicated that for years she had cooperated within Tbilisi City Hall on international cultural projects.
Tbilisi City Court imposed a fine of GEL 2,500 in an administrative case on Saba Skhvitaridze, who had been detained at a protest action. The decision was made by Judge Zviad Tsekvava. Administrative proceedings against Saba Skhvitaridze were conducted under Article 174¹, paragraph 4, and Articles 166 and 173 of the Code of Administrative Offences, which concern the artificial blocking of the carriageway, petty hooliganism, and disobedience to a lawful order of a police officer. According to the lawyer, the court examined these cases jointly. At the court hearing, Saba Skhvitaridze stated, regarding the circumstances of the detention, that his detention took place after a physical incident with the police. According to him, physical violence was used against him during the detention. During the same period, Saba Skhvitaridze was in detention within the framework of a criminal case; he had been arrested on 5 December. After the arrest, he spoke about ill-treatment by law enforcement officers.
According to information disseminated in the media, statements were made about possible pressure on some Tbilisi City Hall employees. According to an anonymous source, City Hall employees were being urged to withdraw their signatures from a public statement related to the European Union; otherwise, they were being warned about the non-renewal of labour contracts.
According to the same information, in one structural unit, a person in a managerial position was instructed to dismiss employees who had signed the statement, after which, according to reports, he left his position. Former City Hall employee Giga Sopromadze spoke publicly about these circumstances and stated that pressure was being exerted on employees who had signed the statement. According to him, the number of signatories decreased. Sopromadze referred to a relevant document, according to which the statement was initially signed by approximately 240 employees, while later the number of signatures decreased.
Tbilisi City Court found Sandro Bukia, who had been detained on 7 December, to be an administrative offender. By the decision of Judge Nino Enukidze, he was found to be an offender on the basis of Article 173 of the Code of Administrative Offences and was issued a verbal warning. According to reports, Sandro Bukia was detained on 7 December in the area surrounding Rustaveli metro station. According to media reports, the detention took place while he was moving. According to media reports, during the detention, a family member pointed to the detained person’s health condition.
According to reports, behavioural therapist Salome Mchedlidze was dismissed from the Rustavi Municipality Rehabilitation and Development Centre. According to her, the labour contract, the term of which expired on 31 December, was not renewed from 2025. Salome Mchedlidze explained that she was involved in ABA therapy and rehabilitation-habilitation programmes. According to her, the only reason given for the termination of the contract was the expiry of the contract term, while she links the decision to her political position. According to her, the contract of one more behavioural therapist was also not renewed, while two employees, according to reports, left their jobs in solidarity with them.
Tbilisi City Court released protest demonstration participant Bilal Duishvili with a verbal warning within the framework of administrative proceedings. The decision was made by Judge Zviad Tsekvava. According to reports, Bilal Duishvili was detained on 4 December during the protest action. According to available reports, during the detention process he indicated physical violence by law enforcement officers. According to the same information, his personal belongings were confiscated during the detention. According to information disseminated in the media, after the detention Bilal Duishvili was transferred to a medical facility. According to reports, he had a fractured nose, multiple bruises, and a concussion, because of which he remained in a clinic for several days.
On 27 December, Taia Makharashvili, an employee of Tbilisi City Hall’s Media Relations Service, was dismissed from City Hall. According to her, the decision was political in nature. Makharashvili stated that the official reason given to her was that her labour contract would not be renewed because the position she held had been abolished. According to her, this explanation raises doubts, especially against the background that she was among the signatories of the public statement in which City Hall employees expressed loyalty to the Constitution and European integration. Makharashvili also indicates that a few days earlier she had participated in the establishment of a trade union together with other public servants, which, in her assessment, points to the possible political motive of the decision.
On similar grounds due to the abolition of the position Lana Kardava, an employee of the Public Relations Department, was also dismissed from City Hall. Kardava wrote on social media that she views the decision in a political context and links it to the ongoing developments in the country. The series of dismissals was preceded by another case: on 26 December, after 8 years of work, Giga Sopromadze, who held the position of coordinator of disability programmes, was dismissed from City Hall. It should be noted that the statement disseminated in early December, in which City Hall employees expressed support for the course of European integration, was signed by more than 220 employees. Tbilisi Mayor Kakha Kaladze publicly called this statement “sabotage” and stated that there would be a response.
On 27 December, Mikheil Butskhrikidze, Head of the Office of the Adigeni Municipal Council, was dismissed from his position. The decision was preceded by his public statement on social media, published on 26 December. Butskhrikidze stated that he distanced himself from the decision of “Georgian Dream” regarding the suspension of the European integration process and condemned the violent dispersal of citizens’ peaceful protest.
One day after expressing his public position, he was dismissed from the Municipal Council Office. Butskhrikidze himself also disseminated information about his dismissal on social media, where he stated that he had worked in public service for more than ten years and had served the country “with a clear conscience.”
29 December
On Rustaveli Avenue, in the area surrounding Kashveti Church, the police detained protest participants. According to eyewitnesses, the demonstrators were not occupying the carriageway and it was unclear to them what became the basis for the detentions. The situation on site became tense and there was a confrontation. One of the protest participants told the media that the gathered persons were standing on the sidewalk and near the lawn, while part of the road had been blocked by the police themselves. In his assessment, law enforcement officers were detaining people through the use of force.
The Ministry of Internal Affairs explained that 6 persons had been detained under administrative-offence proceedings. Later, the agency stated that all six detained persons had been released on the basis of a written undertaking. They were accused of petty hooliganism and disobedience to a police order. According to police officers on site, the reason for the detentions was the alleged insulting of law enforcement officers by protest participants.
According to the assessment of the Georgian Young Lawyers’ Association, the detentions were carried out by violent methods. The organization stated that actions such as pulling hair and dragging citizens on the ground were documented, which, in its assessment, violate the freedoms of peaceful assembly and expression and do not comply with legal norms.
30 December
Government Administration employee Mate Sokhadze states that his labour contract will not be renewed from January 2025. In his assessment, this decision is politically motivated.
Sokhadze writes on social media that he received information about the non-renewal of the contract at the end of December. According to him, the decision was not entirely unexpected, although he notes that he did not receive any official justification. Sokhadze links his dismissal to his public positions, including signing a statement by persons employed in the public sector and participating in protest actions. The Government Administration explains that Mate Sokhadze was a non-staff employee, the term of his contract had expired, and its renewal was not planned. The agency states that the decision is not linked to political factors and that it has no information about Sokhadze’s “political taste.”
Recently, information has been disseminated about the dismissal of a number of persons employed under labour contracts from public agencies. According to various media reports, the dismissals affected both the Crime Prevention and Probation Center and Tbilisi City Hall.
On 30 December, information was disseminated according to which some employees of the National Agency of Public Registry state that their labour contracts will not be renewed from 2025. The employees disseminated the relevant statements on social media.
One of the first persons to write publicly about the non-renewal of her contract was Ani Mamukelashvili, who noted that on 30 December an HR representative informed her of the decision. In her assessment, this step is linked to her signing of the petition of Public Registry employees. Nino Kharchilava also links her dismissal to her civic positions. According to her, for several years she was involved in the systematic land registration project and learned about the termination of her contract precisely after participating in the petition. A statement of similar content was disseminated by Sali Kapanadze, who writes that the agency ended cooperation with her after many years of work. Elza Geladze also links the decision to political circumstances and states that the official reason given to her was “the absence of a need for staff.” Fikria Ardia also speaks of a political motive, stating that the non-renewal of her contract is linked to her political views. In the same context, other agency employees — Ana Gurasashvili, Meri Tagoshvili, and Zura Gegeshidze — also write about their positions and dismissal, noting that the decision was politically motivated.
