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A. Draft resolution
(open)
Report | Doc. 16271 | 30 September 2025
Uphold democracy and the rule of law in Georgia
Committee on the Honouring of Obligations and Commitments by Member States of the Council of Europe (Monitoring Committee)
A. Draft resolution 
(open)1. The Parliamentary Assembly
refers to its Resolution
2585 (2025) “Challenge, on substantive grounds, of the still unratified
credentials of the parliamentary delegation of Georgia” and Resolution 2600 (2025) “The situation in Georgia and follow up to Resolution
2585 (2025) ‘Challenge, on substantive grounds, of the still unratified
credentials of the parliamentary delegation of Georgia’” in which
it expressed serious concerns about the rapid democratic backsliding
and deep political and social crisis in Georgia. These developments
raise serious doubts about the authorities' willingness to abide
by Georgia’s membership obligations and accession commitments to
the Council of Europe.
2. The Assembly deeply regrets that the Georgian authorities
have systematically ignored its concerns and recommendations about
the democratic crisis in Georgia, which are shared by the international
community at large. The rapid democratic backsliding has continued
to such an extent that the very existence of democracy in Georgia
is now being questioned.
3. The Assembly deplores the increasingly isolationist policies
and antagonistic relations of the Georgian authorities with European
organisations and their member States. It also deplores the unfounded
attacks and baseless, damaging accusations against members of the
international community in Georgia, which have multiplied in recent
months. Against this backdrop, the Assembly deeply regrets the Georgian
authorities' rejection of any form of dialogue with the Assembly
and their refusal to co-operate with the European Commission for
Democracy through Law (Venice Commission) in preparing its opinions
on Georgian legislation.
4. Regarding the upcoming local elections in Georgia, the Assembly
deplores the fact that its call for an immediate, inclusive process
to establish an electoral environment conducive to new, genuinely
democratic elections was not implemented, as is evident from the
decision by the majority of opposition parties not to participate
in the upcoming local elections. The Assembly regrets that these
elections will not be observed by civil society organisations with
a well-respected track record in election observation, due to the
crackdown on civil society. In this respect, it deeply regrets that
the Georgian authorities did not invite the Congress of Local and
Regional Authorities of the Council of Europe to observe the upcoming
elections. The Assembly also regrets that the invitation to the
Office for Democratic Institutions and Human Rights of the Organization
for Security and Co-operation in Europe (OSCE/ODIHR) to observe
these elections was issued purposefully so late as to render their
observation impossible.
5. The Assembly condemns the ongoing and relentless crackdown
on political dissent, including by the adoption of repressive legislation
and the abuse of politically motivated legal proceedings against
civil society, independent media, opposition forces and individual
protesters. This crackdown exacerbates the country’s social and
political crisis, violates its Council of Europe membership obligations
and deepens its democratic backsliding.
6. The Assembly reiterates its condemnation of the politically
motivated prosecution of opposition members, journalists, and civil
society representatives in Georgia. In this regard, it deplores
the disproportionate and politically motivated imprisonment of the
journalist Mzia Amaghlobeli and several opposition party leaders
on trumped-up charges. Such prosecutions aim to silence dissenting
voices and are incompatible with a democratic society.
7. The Assembly deeply regrets that, despite its calls to the
contrary, no effective investigations have been conducted into police
brutality and other human rights abuses during the demonstrations,
nor into the many substantiated reports of torture and ill-treatment
of demonstrators during their arrest and detention. This stands in
stark contrast with the lengthy prison sentences handed down to
protesters on questionable and allegedly fabricated charges. The
Assembly calls for an immediate end to the abuse of legal procedures
to silence opposition and dissent, and for the immediate release
of all persons subjected to politically motivated persecution in
Georgia.
8. A dynamic and pluralistic civil society is essential for a
well-functioning democracy. Civil society in Georgia has historically
played a pivotal role in the country's democratic development. The
Assembly is therefore seriously concerned about the Georgian authorities'
actions against NGOs to enforce the controversial Foreign Agent
Registration Act, which impedes their proper functioning. The Assembly
notes that, alongside the Foreign Agent Registration Act, the Transparency
of Foreign Influence Law, which falls short of European standards,
remains in force. Furthermore, the Assembly regrets the adoption
of the Law on Grants by the Georgian Parliament on 16 April 2025.
This law requires international donors, including the Council of Europe
and its member States, to obtain the Georgian Government's approval
before providing funds or assistance to Georgian civil society organisations.
Receiving an unauthorised grant will result in the local organisation
being fined twice the amount received. More than 30 civil society
organisations have been informed that they will be subjected to
inspections by the anti-corruption bureau, the independence of which from
the executive branch of government has been widely questioned. The
cumulative effect of these laws has been devastating for civil society
in Georgia, whose survival is currently at risk. In this context,
the Assembly deplores the freezing of the bank accounts of seven
well-respected civil society organisations as part of a criminal
investigation into alleged sabotage on behalf of foreign entities.
This has had a chilling effect on Georgian civil society.
9. The Assembly is concerned that intimidation and retaliation
against civil servants, including a large number of dismissals,
have continued. This undermines the existence of an independent
and impartial civil service in Georgia.
10. The Assembly reiterates its serious concerns regarding the
parliamentary investigative commission into the activities of the
“United National Movement (UNM) regime' and its political representatives
between 2003 and 2012. This investigation was later extended to
cover the period from 2012 until the present day. The Assembly deplores
the commission’s conclusion that the UNM and its affiliated parties
hindered the establishment of a healthy political system in Georgia
and should therefore be banned. The Assembly strongly condemns the
recent announcement by Georgia's prime minister that the ruling
majority will appeal to the Constitutional Court to declare all
parties belonging to the “collective UNM” – practically the entire
current democratic opposition – unconstitutional. In the Assembly's
view, such banning of the democratic opposition would effectively
establish a one-party dictatorship in Georgia, which would be incompatible
with Council of Europe membership.
11. The Assembly urges the Georgian authorities to immediately
reverse the breakdown of democracy in the country. It reiterates
its readiness to engage in open and constructive dialogue with the
authorities and all political and social forces in Georgia, with
the aim of reversing the democratic backsliding and ensuring that the
country honours its membership obligations and accession commitments
to the Council of Europe. However, the Assembly emphasises that
such a dialogue can only be based on acceptance of the Council of Europe's
fundamental norms and principles. It notes that Georgia can benefit
from the full support of the Council of Europe in this respect and
urges the authorities to make use of all tools available. As a sign
of its readiness for dialogue, the Assembly supports the rapporteurs
for Georgia of the Committee on the Honouring of Obligations and
Commitments by Member States of the Council of Europe (Monitoring
Committee) to visiting the country at their earliest convenience.
12. The Assembly recognises that reversing the breakdown of democracy
in Georgia is an issue for all Council of Europe bodies. It therefore
urges the bodies of the Council of Europe to use all available means including
those under Article 52 of the European Convention on Human Rights
(ETS No. 5) and invites member States to use interstate applications
to the European Court of Human Rights under Article 33 of the Convention, to
ensure that Georgia fully honours all the standards and obligations
stemming from Council of Europe membership.