Adoption / Tightening of Repressive Legislation

Documented Incidents Against Civil Activists – October 2025

Context

The incidents documented in October 2025 indicate a further intensification of repressive practices related to protest activities. Within the framework of the present monitoring, 18 documented incidents demonstrate that both administrative and criminal prosecution of protest participants actively continued throughout the month. Courts imposed administrative detention on numerous individuals, while the Ministry of Internal Affairs launched mass detentions on the grounds of road obstruction and covering one’s face.

During the same period, Georgian Dream adopted legislative amendments that significantly tightened restrictions related to the freedoms of assembly and expression. In parallel, a case of a physical attack against activists was also documented.

Incidents

On 1 October 2025, Judge Nana Shamatava of the Tbilisi City Court granted the Prosecutor’s Office’s motion and imposed pre-trial detention as a preventive measure on Gela Khasaia, an activist of the Coalition for Change. Khasaia was charged under Article 118(2) of the Criminal Code (intentional less serious bodily injury committed by a group), which provides for a prison sentence of between four and six years.

The activist had been arrested by representatives of the Ministry of Internal Affairs on 29 September. According to his lawyer, the case concerns a conflict that occurred on 1 September near Station Square, involving individuals unknown to Gela Khasaia, which he merely witnessed. Lawyer Omar Purtseladze stated that while Khasaia was held at the police station, he was subjected to verbal abuse and psychological pressure. According to Purtseladze, one police officer reminded Khasaia of an earlier incident in which the officer had promised that Khasaia would be “arrested under criminal law.”

On 3 October 2025, students who had gathered on Metekhi Bridge to make a public statement were attacked by unidentified individuals and physically assaulted. Igor Narmania, Chairperson of the United National Movement’s Youth Organisation, was injured. The attackers also physically assaulted a minor activist, who was reportedly struck on the head with a piece of metal.

On 9 October 2025, Judge Giorgi Gelashvili of the Tbilisi City Court sentenced poet Zviad Ratiani to two years’ imprisonment. The Prosecutor’s Office had charged the poet under Article 353¹ of the Criminal Code for attacking a police officer; however, the judge reclassified the charge under Article 353(1) of the Criminal Code, which criminalises resistance against a police officer with the purpose of obstructing, terminating, or altering the officer’s activities in maintaining public order. Zviad Ratiani had been arrested on 23 June 2025 after slapping police officer Teimuraz Meshvelashvili outside the Parliament building in Tbilisi.

On 16 October 2025, Georgian Dream adopted, at third reading, amendments to the Criminal Code and the Code of Administrative Offences that restrict the forms of protest available to demonstrators. Under the expedited legislative package, a new paragraph 10 was added to Article 174¹ of the Code of Administrative Offences, introducing mandatory administrative detention for participants in assemblies or demonstrations who commit any of the following acts:

covering one’s face with a mask or by any other means;
possessing tear gas, nerve agents and/or poisonous substances;
intentionally creating obstacles to the movement of people or vehicles;
erecting temporary structures where such structures obstruct police efforts to maintain public order and safety;
partially or fully blocking the carriageway where, considering the number of participants, the assembly could otherwise be conducted without doing so.

Violation of these provisions is punishable by:

administrative detention for up to 15 days;
where the offender is an organiser, administrative detention for up to 20 days.

The amendments also introduced mandatory administrative detention of up to 60 days where participants:

possess firearms, explosives, flammable materials, radioactive substances, cold weapons, or pyrotechnic items;
possess objects or substances that are used or could be used to cause harm to the life or health of participants or other persons;
participate in an assembly or demonstration that has been terminated upon the request of the Ministry of Internal Affairs under Article 13(1) of the Law on Assemblies and Demonstrations.

The amendments to the Criminal Code further provide that repeated commission of the above-mentioned acts within one year will constitute a criminal offence punishable by:

imprisonment for up to one year;
imprisonment for up to two years if committed repeatedly;
for minors, a fine, corrective labour, or imprisonment for up to one year;
where committed by an organiser and resulting in serious consequences, imprisonment for up to four years.

The amendments further provide that a third violation of Article 173 of the Code of Administrative Offences (failure to comply with or insulting a police officer) constitutes a criminal offence punishable by:

imprisonment for up to one year for a third offence;
imprisonment for up to two years if committed repeatedly;
for minors, a fine, corrective labour, or imprisonment for up to one year.

On 16 October 2025, Georgian Dream, under the expedited procedure, adopted at third reading a legislative package providing for restrictions on the right of certain individuals to engage in party activities, hold political office, and participate in elections. Under the legislative package, upon the request of the claimant in proceedings before the Constitutional Court, the Constitutional Court may prohibit a person affiliated with a banned political party from:

establishing a political party;
membership in a political party;
membership in the governing body of a political party;
holding a party position;
standing as a candidate in elections (passive electoral right);
acquiring the mandate of an elected representative or elected public official;
holding political office;
heading a constitutional body.

Where requested by the claimant, granting the constitutional claim will also result in:

termination of the mandate of a Member of Parliament elected through the nomination of the banned political party;
termination of the mandate of a member of another representative body;
removal of a person from a party list.

Registration shall be refused to any political party whose electoral list includes a person prohibited from engaging in party activities or holding political office. A political party that includes such a person on its list shall be subject to a fine.

Likewise, it will be prohibited to include such persons on party lists for parliamentary or local self-government elections. The Central Election Commission will refuse to register such parties for either parliamentary or local elections.

On 17 October 2025, Judge Davit Mamiseishvili of the Tbilisi Court of Appeal reclassified the charge against Giorgi Kuchuashvili from assault on a police officer under Article 353¹ of the Criminal Code to resistance to a police officer under Article 353 of the Criminal Code and sentenced him to two years’ imprisonment. Kuchuashvili had been arrested during protests against the so-called “Russian Law” in May 2024. On 4 February 2025, he had been sentenced to four years’ imprisonment. Following the appellate judgment reducing his sentence to two years, he was released from prison on 26 May.

On 19 October 2025, the Ministry of Internal Affairs administratively detained 12 participants in the protest held on Rustaveli Avenue on 18 October. Those detained were: Lara Nachkebia, Nino Svanidze, Levan Margiani, Giorgi Qiasashvili, Davit Gogichaishvili, Saba Khomeriki, Levan Jobava, Tornike Tkhilava, Gela Gamqrelidze, Vakhtang Machavariani, Lasha Chkhartishvili, and Mamuka Kupreishvili. The wave of detentions followed the legislative amendments adopted by Georgian Dream on 16 October to the Criminal Code and the Code of Administrative Offences, which significantly restricted the forms of protest available to citizens.

Proceedings concerning the 12 detainees were held before the Tbilisi City Court on 20 October. The Ministry of Internal Affairs accused some of the detainees of “artificially blocking the roadway,” while others were charged with covering their faces during the protest.

Seven of the twelve detainees were sentenced to administrative detention:

activist Lara Nachkebia – 4 days (covering the face with a mask);
activist Nino Svanidze – 5 days (blocking the roadway);
painter Levan Margiani – 6 days (blocking the roadway);
activist Giorgi Qiasashvili – 6 days (blocking the roadway);
activist Davit Gogichaishvili – 6 days (covering the face with a mask);
activist Saba Khomeriki – 8 days (blocking the roadway);
activist Levan Jobava – 14 days (blocking the roadway).

On 20 October 2025, representatives of the Ministry of Internal Affairs detained four participants in the ongoing protest on Rustaveli Avenue: Nino Beruashvili, Saba Japaridze, Tamar Totladze, and Temo Saralidze. Proceedings concerning the detainees were held before the Tbilisi City Court on the same day. The Ministry accused two of them of artificially blocking the roadway and the other two of covering their faces during the protest.

The court imposed administrative detention on all four detainees:

activist Nino Beruashvili – 4 days (blocking the roadway);
actor Saba Japaridze – 6 days (covering the face during the protest);
activist Tamar Totladze – 6 days (blocking the roadway);
activist Temo Saralidze – 6 days (covering the face during the protest).

On 21 October 2025, the Ministry of Internal Affairs began detaining participants in the Rustaveli Avenue protest from the early morning. During the day, law enforcement officers detained five additional activists: Beka Kurkhuli, Kakha Mikaia, Konstantine Mikaia, Boris Kutsia, and Imeda Kldiashvili. All of them were accused either of covering their faces during the protest or of “artificially blocking the roadway.” The Tbilisi City Court imposed administrative detention on all five activists for violating the newly introduced protest-related regulations.

Specifically:

Beka Kurkhuli – 8 days of administrative detention;
Kakha Mikaia – 14 days of administrative detention;
Konstantine Mikaia – 14 days of administrative detention;
Imeda Kldiashvili – 9 days of administrative detention.

On 22 October 2025, the Ministry of Internal Affairs issued a statement. According to the Ministry, during the previous three days, after the new law restricting freedom of expression entered into force, police detained 53 individuals, more than 40 of whom had already been found to have committed administrative offences. Within the framework of the present monitoring, 22 cases were documented. In addition, between 19 and 21 October, the Ministry of Internal Affairs detained three journalists together with activists. Based on the data published by the Ministry, it was not possible to identify an additional 28 detained persons.

On 22 October 2025, during a protest on Rustaveli Avenue, the Ministry of Internal Affairs administratively detained up to 20 citizens. The wave of detentions followed the amendments adopted by Georgian Dream on 16 October to the Criminal Code and the Code of Administrative Offences, which significantly restricted the forms of protest available to citizens. The Ministry of Internal Affairs began administrative detentions at the Rustaveli protest on 18 October on the grounds of unlawful blocking of the roadway and covering one’s face.

On 22 October 2025, 48-year-old Tamar Lortkipanidze was arrested during the ongoing protest on Rustaveli Avenue for climbing onto a patrol police vehicle.

Footage circulated by citizens shows Tamar, together with several other protest participants, first sitting on the roadway, then standing up, spreading her arms, and attempting to stop the movement of vehicles. Approximately two minutes later, a patrol police vehicle appears in the footage from Freedom Square. Tamar then stands several metres in front of the police vehicle and spreads her arms. A few seconds later, she runs towards the patrol vehicle, climbs onto it, and stands on its roof. Shortly afterwards, Tamar Lortkipanidze climbs down from the vehicle on her own and again stands on the roadway with her arms spread. For this act, the Ministry of Internal Affairs initially accused her of an offence under Article 239 of the Criminal Code. However, on 24 October, the Prosecutor’s Office of Georgia aggravated the charge and now accuses the activist of violence and attacking a police vehicle.

Tamar Lortkipanidze is charged with:

violence causing physical pain to the victim, under Article 126(1) of the Criminal Code of Georgia;
attacking a police vehicle in connection with the official activities of a police officer, an offence under Article 353¹(1) of the Criminal Code.

If convicted, she faces four to seven years’ imprisonment. As for the preventive measure, on 25 October Judge Nana Shamatava imposed pre-trial detention on Tamar Lortkipanidze.

On 22 October 2025, disability rights advocate Gia Jvarsheishvili was detained during the protest on Rustaveli Avenue. On 24 October, Judge Zviad Tsekvava of the Tbilisi City Court sentenced the detained activist to 10 days of administrative detention. The Ministry of Internal Affairs accused him of petty hooliganism and failure to comply with a lawful order of a police officer.

On 22 October 2025, during the protest on Rustaveli Avenue, the Ministry of Internal Affairs (MIA) administratively detained approximately 20 individuals. The wave of detentions followed the amendments to the Criminal Code and the Code of Administrative Offences adopted by Georgian Dream on 16 October, which significantly restricted the forms of protest available to citizens. The MIA began administratively detaining participants in the Rustaveli Avenue protests on 18 October on the grounds of unlawfully blocking the roadway and covering their faces.

On 24 October 2025, police detained several activists for participating in the protest held on Rustaveli Avenue on 23 October and for blocking the avenue. Those detained included:

Bacho Kimutsadze – member of the Coalition for Change;
Natia Letodiani – member of the Droa party;
Davit Mshvenieradze – law student at Ilia State University (sentenced to 6 days of administrative detention);
Nino Laghidze – environmental education specialist;
Zura Tsetskhladze – father of prisoner of conscience Zviad Tsetskhladze;
Tengo Kirtadze – member of the Federalists party;
Anuka Gamsakhurdia – civil activist;
Dani Maghradze – civil activist;
Zviad Kvaratskhelia – writer, publisher, and television presenter;
Giorgi Liponava – film director and co-founder of Formula TV;
Achi Gochitashvili – student (sentenced to 10 days of administrative detention);
Vaso Beridze – student;
Natia Gogava – civil activist;
Natalia Slepakova – civil activist;
Davit Chkadua – winner of the second student season of the television programme Book Shelf;
Giorgi Melitauri (sentenced to 10 days of administrative detention).

On 29 October 2025, Judge Tamar Mchedlishvili of the Tbilisi City Court replaced the preventive measure imposed on teacher Nino Datashvili from pre-trial detention to bail in the amount of GEL 5,000. Datashvili had been charged under Article 353²(3) of the Criminal Code of Georgia (assault on a public official/court bailiff in the course of performing official duties). Following the decision, the teacher and activist was released from the penitentiary institution. She was given 30 days to pay the bail.

The Prosecutor’s Office announced its motion to replace the preventive measure only a few minutes before the hearing commenced. Datashvili’s lawyers had also requested the replacement of pre-trial detention, arguing that her health had deteriorated significantly while in detention and that she urgently required spinal and cervical surgery. Due to her deteriorating health condition, Datashvili was unable to attend the hearing in person and participated remotely.

On 29 October 2025, Judge Lela Tsagareishvili sentenced researcher Shalva Koghuashvili to six days of administrative detention. The Ministry of Internal Affairs accused him of an administrative offence under Article 174¹ of the Code of Administrative Offences for artificially blocking the roadway during the protest on 27 October.

Between 27 and 31 October 2025, according to the Ministry of Internal Affairs, 29 citizens were detained during protests on Rustaveli Avenue over a five-day period. The Ministry accused them of unlawfully blocking Rustaveli Avenue, conduct which, under the legislative package adopted at third reading on 16 October, is punishable by mandatory administrative detention without the possibility of a fine.

Documented Incidents Against Civil Activists – October 2024

Context

The incidents documented in October 2024 indicate the continuation of pressure against individuals engaged in civic activism and the expression of critical opinions. During the reporting period, both physical attacks and the use of investigative and administrative mechanisms were documented, affecting researchers, representatives of civil society, and individuals affiliated with international organisations.

Particular attention during October was drawn to measures taken against researchers and representatives of analytical organisations, including searches and restrictions on access to bank accounts. A number of domestic and international actors assessed these measures as a form of pressure against civil society and critical research activities.

During the same period, the Constitutional Court’s decision not to suspend the operation of the so-called “Russian Law” further intensified concerns regarding its potential impact on civic space and the activities of independent organisations in the country.

Incidents

On 10 October 2024, the Plenum of the Constitutional Court of Georgia decided not to suspend the operation of the Law on Transparency of Foreign Influence, commonly referred to as the “Russian Law,” pending the Court’s final judgment. Despite the applicants’ request, the Court did not grant the motion to suspend the contested provisions. However, it declared the constitutional complaints partially admissible for examination on the merits. The decision adopted by the Plenum of the Constitutional Court was published on the Court’s official website.

On 19 October 2024, Badri Oqujava, a researcher at SovLab, was attacked by a group of individuals at the intersection of Barnovi and Machavariani Streets. According to Oqujava, approximately ten individuals attacked him while he was on his way to work. Women were also among the perpetrators. The researcher believes that the attack was premeditated and politically motivated. According to his account, the attackers repeatedly struck him in the back and then poured paint over him.

Between 24 and 29 October 2024, investigators from the Investigation Service of the Ministry of Finance conducted searches at the homes of Eto Buziashvili and Sopho Gelava, two employees of the U.S.-based organisation the Atlantic Council. Computer equipment was seized from their homes. Investigators from the Financial Police Investigation Service also searched the residence of brothers Onise and Sandro Tskhadadze. According to members of Onise Tskhadadze’s family, investigators stated that the reason for the search was his employment with an international company.

On 29 October, pursuant to a court order, the bank accounts of Sopho Gelava and Eto Buziashvili were frozen. According to the Financial Police, the court authorised this measure within the framework of the so-called “call centre case.” As a result, both researchers working on Russian disinformation were denied access to their personal bank accounts. The U.S. Helsinki Commission also commented on the case, describing the freezing of the bank accounts as an attempt to exert pressure on Georgia’s civil society and the Atlantic Council.

Incidents documented against civil activists – December 2025

Context

The incidents documented in December 2025 indicate both the continued trend of detentions and administrative detention in the context of protest assemblies, and the expansion of legal and investigative mechanisms against civil society, media actors and experts. During the month, a number of activists were detained on Rustaveli Avenue and at other protest locations, mainly on allegations of blocking a road during an assembly or failing to comply with police orders.

During the same period, a case of physical violence against an activist was also documented. In addition, Georgian Dream adopted and brought into force legislative amendments that significantly tighten the regulation of assemblies and demonstrations, including by introducing stricter administrative liability for violations of prior notification requirements and restrictions on movement.

In December, particular attention was drawn to the investigation related to the BBC investigative film, within the framework of which the State Security Service summoned doctors, researchers and civil society representatives for questioning in various procedural capacities. This process was assessed as a series of acts of pressure and intimidation against civil society.

Overall, the incidents documented in December highlight three main trends: detentions during protest assemblies, the tightening of regulations governing assemblies, and pressure on civil society through investigative actions.

Incidents

On 1 December 2025, the BBC published an investigative report alleging that the Georgian authorities had used a First World War-era chemical substance to disperse the anti-government demonstrations of 2024. Within the framework of the investigation, more than 160 investigative actions were carried out and 93 witnesses were questioned, including current and former employees of the Ministry of Internal Affairs, doctors, experts and respondents featured in the British broadcaster’s report.

The State Security Service opened an investigation following the publication of the BBC investigative report under Articles 333 and 319 of the Criminal Code. These provisions concern abuse of official authority and assistance to a foreign organization in hostile activities.

According to the State Security Service, the purpose of the investigation is to establish in detail “what information formed the basis of the interviews of the persons relied upon in the information disseminated by the BBC, the information voiced by them, and how relevant that information may be.”

The State Security Service considers it a fact only that, “on the one hand, the disseminated material contains elements of a crime which, if confirmed, is directed against the life and health of citizens and substantially violates their and the public’s lawful interests,” while “on the other hand, conversely, it contains elements of a crime that grossly damages Georgia’s national interests, its international image and reputation, and is directed against state interests.”

On 2 December 2025, in connection with the BBC investigation, the State Security Service summoned citizens to the agency for questioning. Among them were doctors Gela Ghunashvili and Konstantine Chakhunashvili, who are co-authors of the study featured in the investigative film. Speaking to TV Pirveli, Chakhunashvili noted that the questions mainly concerned his CV and the subject matter of their scientific publications. Chakhunashvili stated that information about their work is public and can be accessed by any person.

On 3 December, in connection with the BBC investigative film, the State Security Service summoned Eka Gigauri, Director of Transparency International Georgia, and activist Mikheil Zakareishvili, who participated in the scientific study conducted by doctor Konstantine Chakhunashvili, for questioning as witnesses. Eka Gigauri was questioned before a magistrate judge. According to her, she was not asked questions concerning intoxication; rather, the State Security Service was mainly interested in whether Gigauri had received any form of remuneration for providing a comment to the BBC, which the Director of Transparency International Georgia assessed as an incomprehensible question.

On 3 December, doctor Davit Chakhunashvili and academic Giorgi Chakhunashvili were also questioned before a magistrate judge. According to Davit Chakhunashvili, investigators asked questions concerning the study conducted by the group of doctors and were interested in whether the study referred to the substance “camite.”

On 6 December 2025, during a protest held near the Government Administration in Tbilisi, law enforcement officers detained activist Giorgi Melitauri. The protest march, held under the slogan “The regime is poisoning us — conduct an international investigation,” was moving from the Parliament building towards the Government Administration. Demonstrators were demanding an international investigation and the examination of substances contained in the water cannon used during the dispersal of the November–December 2024 protests.

On 9 December 2025, activist Roman Akopov was allegedly ambushed near his residence and physically assaulted. The activist himself published photographs on social media.

On 10 December 2025, Georgian Dream considered under an expedited procedure and adopted in the third reading a draft law making it mandatory to notify the police five days in advance of holding an assembly in a place used for the movement of people or transport. In addition, under the legislative amendments, obstructing the free movement of people on sidewalks is prohibited. According to the new amendments to the Law on Assemblies and Demonstrations, violation of the rules, including obstructing pedestrian movement on sidewalks or failure to notify the authorities five days in advance of an assembly, entails, for a first offence, administrative detention of up to 15 days for an ordinary participant and up to 20 days for an organizer. Repeated commission of the same offence is classified as a criminal offence.

On 12 December 2025, civil activist Nene Gablaia was detained on Rustaveli Avenue. Footage disseminated on social media shows several police officers placing Gablaia into a detention vehicle.

On 20 December 2025, tensions escalated during an ongoing protest on Rustaveli Avenue. Police detained activist Isako Devidze. According to protest participants, Devidze was apprehended by around ten police officers through the use of force.

Incidents Documented Against Civil Activists – 11–31 December 2024

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.

Georgian Dream Proposes Assigning Enforcement of the “Russian Law” to the State Audit Office

On 9 March, the ruling party Georgian Dream introduced a legislative amendment in Parliament proposing that enforcement of the so-called “Russian law” (the Law on Transparency of Foreign Influence) be transferred to the State Audit Office. According to the explanatory memorandum, the State Audit Office already exercises oversight and enforcement functions in relation to the Foreign Agents Registration Act (FARA) and the Law on Grants; accordingly, it is deemed appropriate for the same authority to be entrusted with the implementation of this law. The draft amendments were introduced by Georgian Dream Members of Parliament Archil Gorduladze, Tornike Cheishvili, Rati Ionatamishvili, Aluda Ghudushauri, Davit Matikashvili, Guram Macharashvili, Akaki Aladashvili, Tengiz Sharmanashvili, and Aleksandre Tabatadze.

The so-called “Russian law,” first initiated in 2023, establishes a requirement for civil society organizations and independent media receiving foreign funding to register in a designated registry and is referred to by critics as the “Russian law” due to its similarity to the “foreign agents” legislation in force in Russia. The draft law prompted large-scale public protests and international criticism in Georgia, following which its adoption was suspended in 2023. In April 2024, however, the ruling party reintroduced the draft law in Parliament and, on 28 May 2024, following the override of the presidential veto, the law was adopted.

The law obliges organizations receiving foreign funding to submit annual financial disclosures and provides for sanctions in the event of non-compliance. It has subsequently served as the basis for a series of further restrictive legislative amendments, which critics contend are aimed at suppressing dissent and constraining the activities of civil society and independent media.

Parliament Adopts Legislative Amendments Concerning Foreign Funding and the “Non-Recognition of Authorities” in Third Reading

On 28 January and 16 February 2026, the ruling party Georgian Dream initiated a legislative package introducing amendments to the Law on Grants, the Criminal Code of Georgia, the Code of Administrative Offences of Georgia, and the Law of Georgia on Political Associations of Citizens. On 4 March, the Parliament of Georgia adopted the proposed amendments in the third reading during a plenary session.

The adopted amendments significantly tighten the regulatory framework governing foreign funding and expand the legal definition of a grant to encompass not only financial resources but also in-kind contributions and technical assistance that may be used to influence political processes in Georgia. The legislative amendments also introduce additional restrictions on political activity, including prohibiting individuals employed by organizations receiving foreign funding from holding membership in political parties and strengthening liability for so-called “external lobbying.”

The legislative package further introduces amendments to the Criminal Code of Georgia, under which the systematic non-recognition of state authorities, as well as public and repeated calls for the mass violation of legislation, disobedience to state authorities, or the establishment of alternative governing bodies, will be subject to legal liability. The law will enter into force upon its official publication.