The present document is a report of monitoring of the October 27, 2013 presidential elections by the International Society of Fair Elections and Democracy (hereinafter, the ISFED). At the 2013 presidential elections ISFED, as an organization with one of the broadest networks was actively involved in pre-election as well as the Elections Day and post-election monitoring. Similar to the 2012 parliamentary elections, the ISFED carried out monitoring of the presidential elections with the use of new methods and innovative technologies.
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I. About the Monitoring Mission............................................................................................................ 2
II. Key Findings................................................................................................................................. 2
III. Political Context............................................................................................................................. 5
IV. Election Legislation.......................................................................................................................... 6
1. Woring Process !ithin the Inter"Factional #as Force.............................................................................................$
%. Voters& List 'eco((endations..................................................................................................................................)
-. rganic La! o+ /eorgia on Political 0nion o+ Citiens......................................................................................... ...2
V. Voters& List...................................................................................................................................... 8
VI. Election Ad(inistration.....................................................................................................................9
1. #he Central Election Co((ission.............................................................................................................................3
%. 4istrict and Precinct Election Co((issions............................................................................................................11
VII. #he Inter"Agency #as Force +or Free and Fair Elections........................................................................11
VIII. #he ,tate Audit ++ice.................................................................................................................. 12
-. #hreads and Pressure...............................................................................................................................................1-
$. Media En8iron(ent.................................................................................................................................................17
). ,ta++ changes in local sel+"go8ern(ent authorities............................................................................................ ......17
5. Monitoring o+ 9ublic (eetings held by 9arties:election sub;ects during the 9re"election 9eriod............................16
#here+ore= !e belie8e that in order to +urther i(9ro8e the election la!s the !or on election re+or( should
continue.
It is I,FE4&s assess(ent that the !or o+ the CEC !as o9en= 9ro(oting collaborati8e en8iron(ent !ith local
and international organiations as !ell as 9olitical 9arties. #he CEC !as acti8ely in8ol8ed in 8oter a!areness. It
created a 8ideo about election 9rocedures as !ell as guidelines +or use o+ state resources= consideration o+election dis9utes and other (atters.
Bo!e8er= I,FE4 criticied t!o o+ the CEC&s decisions@ +irst about the re+usal to register a holder o+ dual
citienshi9 as 9residential candidate= (ade on the basis o+ a !rong+ul inter9retation o+ the Constitution= and
second about regulations o+ 9hoto and 8ideo shooting during the 9olling day.
As to District Election $ommissions= (a;ority o+ 9roble(s re8ealed during the (onitoring !as related to
sta++ing o+ the election ad(inistration. ,o(e o+ the te(9orary (e(bers o+ district election co((issions
a99ointed by the CEC as !ell as 9olitical 9arties also ser8ed in 8arious 9ublic agencies. Further= (e(bers o+ the
Coalition /eorgian 4rea( inter+ered !ith the !or o+ district election co((issions.
#he +or(at o+ the Inter-Agency Tas% #orce &or #ree and #air Election !as 8ery i(9ortant during 9re"
election 9eriod= as it enabled 9olitical 9arties and (onitoring organiations to raise i(9ortant issues 9ertinent to
the election 9eriod be+ore the co((ission and sub(it re9orts about alleged 8iolations.
#he IA#F !hich o9erated under the aus9ices o+ the Ministry o+ ustice= did elaborate se8eral i(9ortant
reco((endationsD ho!e8er= considering non"binding nature o+ these reco((endations as !ell as the lac o+
(echanis( to ensure their i(9le(entation= (a;ority o+ these reco((endations !as ne8er realied.
Further= exa(ining issues raised by the 0M in a constructi8e (anner !as also 9roble(atic as +reuently
(eetings o+ the IA#F turned into the scene o+ 9olitical debates. Lac o+ constructi8e en8iron(ent at the IA#F(eetings had ad8erse i(9act on the !or o+ the co((ission and the o99osition&s +ull in8ol8e(ent in it.
Co(9ared to %<1% 9arlia(entary elections= the 'tate Audit (&&ice !as less acti8e. #he +inancial (onitoring
ser8ice did not exa(ine any o+ I,FE4&s re9orts o+ 8ote buying.
Co(9ared to %<1% 9re"election 9eriod= !hen the ser8ice o+ +inancial (onitoring !as harshly criticied +or
8iolations= the 9rocess o+ obtaining state(ents +ro( citiens did not in8ol8e any 8iolations. #otal o+ 3% 9ersons
!ere inter8ie!ed during the 9re"election 9eriod +or obtaining state(ents.
,i(ilar to the %<1% 9arlia(entary elections= the issue o& )oters re(o8ed +ro( registration re(ained a 9roble(.
#he CEC esti(ated that nu(ber o+ such 8oters !as 3) <<<. We !elco(e the +act that the CEC did not includethese 8oters auto(atically on the 8oter list= unlie the 9re8ious %<1% elections. Instead= the Agency +or the
4e8elo9(ent o+ ,tate ,er8ices 9osted a database on its !ebsite +or re"registration o+ 8oters re(o8ed +ro(
registration= through !hich e8ery indi8idual citien !as able to recei8e in+or(ation about the status o+ his:her
registration and learn about 9rocedures o+ re"registration.
4uring the 9re"election 9eriod= there !ere no +reuent abuses o+ state resources by 9olitical 9arties and election
sub;ects. I,FE4 detected total o+ 1) cases o+ abusing 9ublic resources both in +a8or o+ the ruling 9arty as !ell
as the o99osition. I,FE4 +ound that the coalition /eorgian 4rea( abuse 9ublic resources in ten cases= the 0M
in se8en.
I,FE4 also detected se8eral +acts o+ 8ote buying !ith the in8ol8e(ent o+ Pri(e Minister 6idina I8anish8ili=
by trans+erring goods o+ (aterial 8alue or o++ering bene+its to citiens o+ /eorgia.
4uring the re9orting 9eriod I,FE4 detected 1- acts o+ pressure and threats. In (ost o+ the cases these threats
and 9ressure !ere le8eled against (unici9al o++icials.
We identi+ied ) acts o& assault on 9olitical grounds= including * against the 0M su99orters= t!o against
su99orters o+ the 4e(ocratic Mo8e(ent 0ni+ied /eorgia and t!o against (e(bers o+ the coalition /eorgian
4rea(. Assaults !ere 9er9etrated both by su99orters o+ 8arious candidates as !ell as 9olice o++icers
re9resentati8es o+ (unici9al authorities and (e(bers o+ 9arlia(ent.
Changes o+ municipal o&&icials on 9olitical grounds continued during the 9re"election 9eriod. E8en though the
IA#F issued a reco((endation to ter(inate any co(9rehensi8e changes in sel+"go8ern(ent agencies= the
9rocess continued intensely and also entailed i(9each(ent o+ /a(gebelis and ,arebulo Chair9ersons. 4uringthe 9re"election ca(9aign /a(gebelis !ere re9laced in 13 (unici9alities= ,arebulo Chair9ersons in threeD
notably= !e +ound that (a;oritarian MPs inter+ered in the !or o+ sel+"go8ern(ent authorities in a nu(ber o+
(unici9alitiesD in a nu(ber o+ instances /a(gebelis !ere re9laced a(id 9ublic 9rotests.
4uring the 9re"election 9eriod election sub;ects and their su99orters held agitation meetings throughout
/eorgia. We +ound atte(9ts to inter+ere !ith the 0M 9ri(aries by using +orce by radical o99onents o+ the
9olitical o99osition. #hese +acts !ere later discontinued.
I,FE4 esti(ates that +ro( uly 1 through ctober %*= %<1*= 9olitical 9arties and their 9residential candidates
held total o+ 2<1 9ublic (eetings during the 9re"election 9eriod in 8arious territorial units o+ /eorgia.
#he 9re"election 9eriod !as (ared !ith a +ree media en)ironment in !hich 8arious outlets co8ered (eetings
o+ election sub;ect candidates !ith 8oters and 9olitical de8elo9(ents that un+olded. 4es9ite these 9ositi8e
de8elo9(ents= se8eral (edia outlets +aced a nu(ber o+ obstacles. #he (ost outstanding o+ these cases !as the
case o+ /uria Moa(be !hen local (edia outlet accused /a(gebeli o+ exerting 9ressure= !hile one o+ the
o!ners o+ Maestro #V (ade a state(ent about alleged 9ressure on 9olitical rounds by a grou9 o+ o++icials. We
!ould lie to also highlight the de8elo9(ents around the 9ublic broadcaster in8ol8ing the closing do!n o+
9olitical tal"sho!s during the 9re"election 9eriod.
Polling !as conducted in an organied (anner and in a 9eace+ul en8iron(ent throughout /eorgia. Ma;ority o+
8iolations detected on the Election 4ay !ere 9rocedural in nature. ,e8eral (a;or +la!s in the 9olling 9rocess
include +ailure to adeuately (aintain election (aterials >11* cases?= 9resence o+ unauthoried indi8iduals at
election (aterial= etc. I,FE4&s obser8ers reacted to *1 8iolations in total. otably= (a;ority o+ these 8iolations!ere technical in nature and (ostly result o+ lac o+ 9ro+essionalis( and uali+ication o+ election co((ission
(e(bers.
A99lication 9rocess on the Elections 4ay !as conducted in a trans9arent (anner= in obser8ance o+ a99licable
la!s. 4istrict election co((issions exa(ined +acts= re9resentati8es o+ the organiation !ere able to attend
co(9laints re8ie! and ex9ress the 9osition o+ the organiation about a99lications +iled. 4ecisions o+ election
co((issions !ere (ostly substantiatedD ho!e8er= (any decisions +ailed to 9ro8ide grounds +or re;ecting the
clai(s.
III. Political $onte/t
%<1* Presidential elections constituted an i(9ortant e8ent in the 9olitical li+e o+ the country= considering that
co(ing into +orce o+ constitutional a(end(ents that altered the balance o+ 9olitical 9o!ers bet!een di++erent
branches o+ the go8ern(ent and signi+icantly decreased 9o!ers o+ the 9resident is related to this date.
Conducting the 9residential elections +airly !as an i(9ortant challenge +or the go8ern(ent that ca(e into
9o!er +ollo!ing the %<1% 9arlia(entary elections and +or the de(ocratic de8elo9(ent o+ the country. Amid
de)elopments in local sel&-go)ernments &ollowing the *1* parliamentary elections, and arrest o& se)era
high-ran%ing o&&icials0 &ollowed by allegations about political prosecution by the opposition0 it was
important &or the new authorities to pro)e there was a political will to conduct elections in &ree and &air
en)ironment.
The $E$ registered unprecedentedly high number o& presidential candidates. ut o+ the t!enty"three
9residential candidates registered= three candidates too the lead /iorgi Marg8elash8ili +ro( the coalition
/eorgian 4rea(= 4a8it 6arade +ro( the 0nited ational Mo8e(ent and ino 6ur;anade +ro( the
4e(ocratic Mo8e(ent 0ni+ied /eorgia.7
3 !ith a (argin o+ error o+ G:"<.3H >at a 37H con+idence le8el?4 Follo!ing the %<1% 9arlia(entary elections as a result o+ !hich +or(er o99osition +orce ca(e into 9o!er= heads o+ local sel+"
go8ern(ent authorities re9resenting the 0M (assi8ely resigned or !ere dis(issedD instead= re9resentati8es o+ the coalition !ere
a99ointed. Munici9al e(9loyees !ere dis(issed on 9olitical grounds and ne! a99oint(ents !ere also o+ten 9olitically (oti8ated.,arebulo Me(bers started (assi8ely lea8ing the 0MD7 In a sur8ey conducted by the ational 4e(ocratic Institute >4I? in ,e9te(ber= /iorgi Marg8elash8ili= candidate o+ the coalition
/eorgian 4rea( !as leading a(ong the 9residential candidates !ith *3H su99ort= +ollo!ed by 4a8it 6arade= candidate o+ the
0nited ational Mo8e(ent !ith 12H su99ort and ino 6ur;anade= candidate o+ the 4e(ocratic Mo8e(ent 0ni+ied /eorgia as a
third runner u9 !ith )H o+ su99ort. In ,e9te(ber sur8ey conducted by /reenberg uinlan 'osner= -*H o+ res9ondents su99orted
Pre-election promises made by presidential candidates were mostly similar . In ter(s o+ +oreign 9olicy
/iorgi Marg8elash8ili and ino 6ur;anade 9ledged to regulate relations !ith 'ussia= in 8ie! o+ the Euro9ean
choice o+ /eorgia= !hile 4a8it 6arade highlighted the i(9ortance o+ continuing the Euro"Atlantic 9ath o+
/eorgia.
All three candidates 9ledged to rein+orce the econo(y= i(9ro8e in+rastructure= increase 9ensions and teacher&s
salary. ino 6ur;anade laid 9articular e(9hasis on restoration o+ ;ustice and conclusion o+ the 9rocess o+
cohabitation= !hile 4a8it 6arade e(9hasied (ulti"9arty go8ern(ent and the necessity o+ e++ecti8e control o+go8ern(ent.
I. Election 2egislation
1. 3or%ing Process within the Inter-#actional Tas% #orce
$reation o& the inter-&actional tas% &orce and the wor% to re)ise election laws within the &ormat o& the
group is a positi)e step &orward &or impro)ing the election en)ironment. #he tas +orce !as set u9 on
March )= %<1* under the resolution o+ the chair9erson o+ the 9arlia(ent and continued to !or +or o8er se8en
(onths. It is i(9ortant that /s and other interested 9arties are able sub(it their legislati8e reco((endations
to the inter"+actional grou9.
3e welcome the &act that some recommendations submitted by 45(s ha)e been ta%en into account.
6owe)er0 a number o& issues were not considered or re)iewed at all0 e)en though they were submitted at
an early stage. #hese issues include= +or instance= 9ro8iding an exhausti8e list o+ grounds +or establishing the
so"called Js9ecial election 9recincts and cases !hen such 9recincts can be set u9D arro!ing do!n the list o+
9olitical o++ice holders en8isaged by the Election CodeD s9eci+ying the ter( JagitationD Prohibiting (ilitary
ser8ice(en +ro( 9artici9ating in (a;oritarian and sel+"go8ern(ent elections i+ they are stationed in election
9recinct outside the 9lace o+ their registration= etc.
/ re9resentati8es attended discussions about 9ro9osed dra+ts at the 9arlia(entary legal a++airs co((ittee but!ithout ha8ing an o99ortunity to 9resent once (ore reco((endations not re+lected in bills 9ro9osed= !hich is
rather regrettable. It !as stated as an argu(ent that the inter"+actional grou9 did not address a 9articular issue
concerned or that an agree(ent could not be reached= !hile in +act the reality is that the legal a++airs co((ittee
itsel+ re(o8ed +ro( or changed in 9ro9osed dra+ts issues that the inter"+actional grou9 had already reached an
agree(ent about.$
According to the schedule o+ the inter"+actional grou9 9ublished in ad8ance= it should ha8e concluded its !or
on se8en s9eci+ic issues by the end o+ May and tabled subseuent dra+t la!s. 4ue to the +act that initially the
inter"+actional grou9s !as rather 9assi8e in its !or= it +ailed to conclude all issues in due ti(e and continued to
!or through une and uly. e8ertheless= the grou9 did not discuss a nu(ber o+ reco((endations sub(itted by /s citing lac o+ ti(e as the reason. Its re9resentati8e stated that they 9lan to address these issues during
the next stage o+ their !or.
6 E.g. a(end(ents !ere (ade to Article -3 !ith the third reading= regulating i(9le(entation o+ 9ro;ects:9rogra(s +unded +ro( the
1. Prohibiting agitation during e8ents +unded +ro( the state budgetD ho!e8er= !e reco((ended absolute 9rohibition !hile under the a(end(ents ado9ted 9rohibitions a99lies only to an e8ent organier= !hich li(its
the sco9e o+ the 9rohibition and increases the chances o+ (isunderstanding in 9racticeD
%. Inco(9atibility o+ the status o+ a 9residential candidate !ith o++icial 9ositionD
*. bligation o+ local sel+"go8ern(ent agencies to elaborate the list o+ buildings !ithin the 9eriod o+ +i8e days
a+ter the launch o+ 9re"election ca(9aign that can be used as 8enues +or 9re"election ca(9aigning= and
9ro8iding the list to district co((issions. #he later should (ae the list 9ublic !ithin the 9eriod o+ t!o days
9osting o+ the list on the CEC !ebsite;
-. 4e+ining the (eaning o+ agitation (aterial and a(ending Article -$ accordingly.
Recommendations not considered
1. arro!ing do!n the list o+ 9olitical o++ice holders en8isaged by the Election Code in 9articular= re(o8al o+
de9uty (inisters= /a(gebelis and state authoried re9resentati8es /o8ernors +ro( the listD
7 Current 9ro8ision sti9ulates that nu(ber o+ (obile ballot box 8oters should not exceed *H o+ total nu(ber o+ 8oters in a gi8en
%. Pro8iding (ore s9eci+ic de+inition o+ the ter( agitation adding the notion o+ 9assi8e agitation and li(iting
the right o+ certain categories o+ indi8iduals >la! en+orce(ent o++icers= re9resentati8es o+ religious
organiations= etc.? to attend ca(9aign e8entsD
-. Increasing the duration o+ 9re"election ca(9aign u9 to +our (onthsD
7. Prohibiting agitation near election 9recincts on the 9olling day.
,. (rganic 2aw o& 5eorgia on Political :nion o& $iti;ens
Recommendations considered:
1. Legal 9ersons are no! able to 9ro8ide +unding +or 9artiesD
%. ,anctions en8isaged by the la! !ere decreased +ro( +i8e ti(es the a(ount concerned to t!o;
*. In+or(ation about +inancial status o+ an indi8idual based on court !arrantD
-. #i(e+ra(e +or ad(inistrati8e 9roceedings and seuestration 9roceedings.
Recommendations not considered
1. Institutional inde9endence o+ the Audit ,er8iceD
%. Freuency o+ 9ublishing re9orts +inancial re9ort o+ an election sub;ect that also entails in+or(ation aboutex9anses (ade (ust be 9ublished shortly be+ore the elections.
. oters7 2ist
#or *1+ presidential elections0 total number o& )oters was + <+= !<1.
'imilar to the *1* parliamentary elections0 the issue o& )oters remo)ed &rom registration remained a
problem. #he CEC esti(ated that nu(ber o+ such 8oters !as 3) <<<. We !elco(e the +act that the CEC did
not include these 8oters auto(atically on the 8oter list= unlie the 9re8ious %<1% elections. Instead= the Agency
+or the 4e8elo9(ent o+ ,tate ,er8ices 9osted a database on its !ebsite +or re"registration o+ 8oters re(o8ed+ro( registration= through !hich e8ery indi8idual citien !as able to recei8e in+or(ation about the status o+
his:her registration and learn about 9rocedures o+ re"registration. #he CEC also conducted a ca(9aign to raise
9ublic a!areness about registration 9roceduresD +urther= those !ho registered recei8ed I4 cards +ree o+ charge.
We belie8e that the decision about re"registration o+ 8oters re(o8ed +ro( registration !as a 9ositi8e ste9
+or!ard to i(9ro8e 8oter listD ho!e8er= out o+ 3) <<< 8oters re(o8ed +ro( registration only 3<<< !ere able to
re"register.
E8en though the 9rocess o+ i(9ro8ing the 8oter list !as co((endable= I,FE4 9rotested against (aing the
9ersonal in+or(ation o+ 8oters re(o8ed +ro( registration 9ublic. In 9articular= the list that !as 9ublished
contained 9ersonal in+or(ation about 8oters= including their na(e= surna(e= 46 and 9ersonal identi+icationnu(ber. #he Election Code sti9ulates that 8oter na(e= surna(e= 46= address and 9lace o+ actual residence=
date o+ registration and sex is 9art o+ the 8oter list that&s 9ublic. I,FE4 belie8es that 9ersonal identi+ication
nu(ber o+ 8oters !as (ade 9ublic against sti9ulation o+ the Election Code o+ /eorgia and the la! o+ /eorgia
on Protection o+ Personal 4ata.
E8en though I,FE4 a99lied to the Agency +or the 4e8elo9(ent o+ ,tate ,er8ices not to (ae 9ersonal
in+or(ation o+ 8oters 9ublicly accessible= the Agency did not 9rotect 9ersonal identi+ication nu(ber o+ 8oters.
I,FE4 also a99lied to the ins9ector +or the 9rotection o+ 9ersonal in+or(ation but he stated that 9ublishing
9ersonal identi+ication nu(ber o+ citiens did not 8iolate the la! o+ /eorgia on the 9rotection o+ 9ersonal
in+or(ation.
I,FE4 !ould lie to 9articularly highlight the 9roble( o+ registration o+ citiens li8ing abroad. otably= their
nu(ber is as lo! as -2 -$< considering that hundreds and thousands o+ /eorgian citiens li8e outside the
country. We belie8e this is due to the lac o+ a!areness o+ citiens o+ /eorgia residing abroad aboutregistration ter(s and 9rocedures. #he CEC needs to address the 9roble(.
As to the con8icts and de+endants !ith the right to 8ote= only 13) out o+ 1)-) ex9ressed their desire to cast a
ballot in 9residential elections.
oter list needs to be impro)ed by implementing a number o& measures0 including &or instance door-to-
door campaigns and use o& biometric in&ormation &or preparing )oter lists. #urther0 the authorities0 the
$E$0 in )iew o& interests o& )oters residing abroad0 should come up with alternati)e means o& )oting.
I. Election Administration
,tarting +ro( uly 1= %<1*= a+ter the 9re"election ca(9aign !as o++icially launched= I,FE4 !as (onitoring the
!or o+ the CEC= district and 9recinct election co((issions by (eans o+ long"ter( obser8ers in all election
districts throughout /eorgia.
1. The $entral Election $ommission
#he !or o+ the Central Election Co((ission +or the 9residential elections !as (ostly co((endable.
It is I,FE4&s assess(ent that the wor% o& the $E$ was open0 promoting collaborati)e en)ironment withlocal and international organi;ations as well as political parties by organi;ing meetings0 pro)iding easy
access to in&ormation and transparent decision-ma%ing.
#he CEC !as acti8ely in8ol8ed in 8oter a!areness. It created a 8ideo about election 9rocedures as !ell as
guidelines +or use o+ state resources= consideration o+ election dis9utes and other i(9ortant (atters.
#he election ad(inistration conducted a nu(ber o+ i(9ortant acti8ities to ensure eual election en8iron(ent
including a!areness ca(9aign +or 9ersons !ith disabilities and designing s9ecial ballots. 6owe)er0 lac% o&
election districts adapted to the needs o& persons with disabilities remained an issue. The $E$ estimates
the number o& election districts adapted at +*! or only !.9
4es9ite these 9ositi8e initiati8es= one issue that I,FE4 +ound 9roble(atic !as the decision o+ the CEC to re+use
registration as 9residential candidate to a holder o+ dual citienshi9= !hich !as criticied by the organiation as
it !as (ade on the basis o+ !rong+ul inter9retation o+ the Constitution.
8 ,ee the CEC state(ent at htt9@::ceso.ge:ge:9age:tanabari"saarche8no"gare(o"sheguduli"shesadleblobebis"(one
Para.11= Article %3 o+ the Constitution o+ /eorgia that has been cited as legal grounds +or the +oregoing order
sti9ulates that Jthe o++ice o+ the 9resident o+ /eorgia shall not be held by a citien o+ /eorgia !ho is also
holding a +oreign citienshi9. I,FE4 belie8es that the nor( does not a99ly to 9ersons 9artici9ating in elections
as candidatesD rather= the Constitution di++erentiates bet!een election o+ a 9resident and holding the 9osition o+ a
9resident= !hile the 9rohibition sti9ulated by 9ara.11= Article %3 o+ the Constitution a99lies only to holding o+
the o++ice. 0nder 9ara.%= Article )< o+ the Constitution= any citien o+ /eorgia including a +oreign citien has the
right to run in 9residential elections but they (ust abandon +oreign citienshi9 9rior to taing the oath o+ o++ice
under Article %3 o+ the Constitution.1<
#he resolution o+ the $E$ pro)iding regulation o& photo and )ideo shooting at election precincts on the
Election $ode remained a problem +or the ne! 9residential elections as !ell. I,FE4 and other /s +iled in
courts o+ all instances against the resolution11 as early as one year ago but the clai( !as re;ected by courts.
,e8eral days be+ore the 9arlia(entary elections= the Central Elections Co((ission a(ended the resolution
ado9ted on ,e9te(ber %-= %<1%. Prior to the a(end(ent= 9ara.%= Article % o+ the resolution sti9ulated that
(ini(u( distance bet!een 9hoto or 8ideo shooter and an ob;ect o+ shooting should ha8e been at least three
(eters. 0nder the a(ended 9ro8ision= the (andatory distance re(ains the sa(eD ho!e8er= i+ the area o+ a
9olling station (aes it i(9ossible +or a 9hoto or 8ideo shooter to obser8e the distance= election co((issionchair9erson has the discretion to deter(ine the distance.1%
E)en though amendments to the resolution o& the $E$ ha)e impro)ed regulations o& photo and )ideo
shooting to a certain e/tent0 it con&licts with para.*<0 Article ! o& the Election $ode1+0 8iolating li(its o+ the
la! and 9rescribing di++erent regulations. 1- #his !ay= it 9laces un;usti+ied restrictions on rights o+ all indi8iduals
seeing to conduct 9hoto and:or 8ideo recording at 9olling stations on the Election 4ay.
*. District and Precinct Election $ommissions
#hrough L#s I,FE4 !as acti8ely (onitoring setting u9 o+ district and 9recinct election co((issions and their
sta++ing. In +ra(es o+ the (onitoring o+ election ad(inistration= obser8ers also attended (eetings o+ election
co((issions to e8aluate 9rocesses +ro( legal 9oint o+ 8ie!.
Ma;ority o+ 9roble(s re8ealed during the (onitoring !as related to sta++ing o+ the election ad(inistration.
'ome o& the temporary members o& district election commissions appointed by the $E$ as well as
political parties also ser)ed in )arious public agencies. 4EC (e(bers are 9rohibited +ro( si(ultaneously
ser8ing in 9ublic agencies and !oring in election co((ission under the a99licable la!. #he trend !as10 ,ee I,FE4&s o9inion about re+usal o+ the CEC to register holder o+ dual citienshi9 as a 9residential candidate= second interi(
re9ort o+ the election (onitoring@ htt9@::!!!.is+ed.ge:(ain:-%%:geo: .11 ,ee ,e9t(ber %-= %<1% 'esolution o+ the CEC -%:%<1% on de+ining certain election 9rocedures12 Co(9are@ resolution o+ the CEC= dated ctober 1$= %<1*= -7:%<1*.13 rganic La! o+ /eorgia= the Election Code= 9ara.%7= Article 2@ 9ersons ha8ing the right to be inside a 9olling station (ay conduct
9hoto and 8ideo shooting outside 9olling booth= !ithout inter+ering !ith the election 9rocess14 For detailed in+or(ation 9lease see I,FE4&s state(ent about 9hoto and 8ideo shooting at 9olling stations
Further= (e(bers o+ the $oalition 5eorgian Dream inter&ered with the wor% o& district election
commissions. I,FE4&s long"ter( obser8ers ha8e re9orted such cases in Mtsheta= A(brolauri= Chohatauri=
#bilisi and Mart8ili district election co((issions. #he inter+erence (ostly entailed the +ollo!ing@ heads o+ local
o++ices o+ the coalition 8isited district election co((issions !ith lists 9re9ared in ad8ance= de(anding
a99oint(ent o+ 9ersons they +a8ored as 4EC (e(bers.1$
I,FE4 conde(ns any inter+erence in the !or o+ the election ad(inistration or their coercion to in+luence their
decisions. It not only constitutes 8iolation o+ la! but also has ad8erse i(9act on the 9re"election en8iron(ent.
II. The Inter-Agency Tas% #orce &or #ree and #air Elections
#he +or(at o+ the Inter"Agency #as Force +or Free and Fair Election !as 8ery i(9ortant during 9re"election
9eriod= as it enabled 9olitical 9arties and (onitoring organiations to raise i(9ortant issues 9ertinent to the
election 9eriod be+ore the co((ission and sub(it re9orts about alleged 8iolations. 6ased on these re9orts= the
IA#F issued reco((endations.
The IAT# which operated under the auspices o& the Ministry o& >ustice0 did elaborate se)eral important
recommendations? howe)er0 considering non-binding nature o& these recommendations as well as the lac%
o& mechanism to ensure compliance0 ma@ority o& these recommendations was ne)er reali;ed. 1=
Further= exa(ining issues raised by the 0M in a constructi8e (anner !as also 9roble(atic as +reuently
(eetings o+ the IA#F turned into the scene o+ 9olitical debates. Lac o+ constructi8e en8iron(ent at the IA#F
(eetings had ad8erse i(9act on the !or o+ the co((ission and the o99osition&s +ull in8ol8e(ent in it.
E8en though the re9ort o+ the IA#F 9ublished on ,e9te(ber *<= %<1*= included a nu(ber o+ reco((endations
raised by I,FE4
12
= #rans9arency International /eorgia or the /eorgian oung La!yers& association= the IA#Fdid not act on se8eral i(9ortant acts o+ 8ote buying= use o+ state resources= 9ressure and threats unco8ered by
us.
Further(ore= I'#ED belie)es that e)en though the law does not prohibit ministers and deputy ministers
&rom participating in pre-election agitation0 the IAT# should ha)e limited participation o& its members in
agitation to promote trust and ob@ecti)ity.
III. The 'tate Audit (&&ice
$ompared to *1* parliamentary elections0 the 'tate Audit (&&ice 'A(B was less acti)e.
15 For detailed in+or(ation 9lease see I,FE4&s third interi( re9ort o+ 9re"election (onitoring@ htt9@::!!!.is+ed.ge:(ain:-<):geo: .16 For detailed in+or(ation 9lease see I,FE4&s +irst interi( re9ort o+ 9re"election (onitoring@ htt9@::!!!.is+ed.ge:(ain:-)%:geo:17 4es9ite reco((endations issued by the IA#F= 9ublic ser8ants still engaged in 9re"election ca(9aigns during !oring hours and
inter+ered !ith 9re"election ca(9aigningD18 #he legal entity o+ 9ublic la! 'ural and Agricultural 4e8elo9(ent Fund is +unded by the charity +oundation Cartu >I,FE4&s +irst
interi( re9ort o+ 9re"election (onitoring= 9.$?D Pri(e Minister&s +a(ily trans+ers In+o 3 +ree o+ charge to the (anaging co(9any>I,FE4&s +ourth interi( re9ort o+ 9re"election (onitoring= 9.11?D Pri(e Minister gi+ts a 8aluable 9resent to ne!ly!eds during the
celebration o+ ,hua(toba >I,FE4&s third interi( re9ort o+ 9re"election (onitoring= 9.1<?D use o+ state resourcesD in+or(ation about
9roble(s in sta++ing o+ election ad(inistrationD se8eral acts o+ 9ressureD
#he +inancial (onitoring ser8ice did not exa(ine any o+ I,FE4&s re9orts o+ 8ote buying.
In se8en 8iolations o+ la! identi+ied by the ,A= !hich in8ol8ed late 9ro8ision o+ in+or(ation about s9ending
o+ business tra8el allo!ance in cash= sub(ission o+ +inancial declarations 9ast the deadline and +ailure to sub(it
in+or(ation about (e(bershi9 +ees= +i8e 9arties !ere i(9osed !ith a +ine by #bilisi City Court&s board o+
ad(inistrati8e cases !hile 9roceedings !ere ter(inated in t!o o+ the cases.
Co(9ared to %<1% 9re"election 9eriod= !hen the ser8ice o+ +inancial (onitoring !as harshly criticied +or
8iolations= the 9rocess o+ obtaining state(ents +ro( citiens did not in8ol8e any 8iolations. #otal o+ 3% 9ersons
!ere inter8ie!ed during the 9re"election 9eriod +or obtaining state(ents.
IC. The Pre-Election Period
1. Methodology
For (onitoring the ctober %)= %<1* Presidential Elections= the International ,ociety +or Fair Elections and
4e(ocracy registered !ith the Central Elections Co((ission >CEC?. ,ince uly 1= %<1*= I,FE4 has been
carrying out 9re"election (onitoring +or the 9residential elections in all election districts o+ /eorgia through )*
long"ter( obser8ers >L#s?. #he L#s ha8e undergone training in 9re9arations +or the (onitoring. In the 9rocess o+ (onitoring I,FE4&s L#s are guided by international standards +or (onitoring organiations13
i(9lying co(9rehensi8e= ob;ecti8e and trans9arent (onitoring o+ elections. I,FE4 (onitors all 9rocesses that
(ay ha8e an i(9act on election en8iron(ent= including@
intense in Kas9i= Lentehi= Keda and 6olnisi Munici9alities.
21 Police o++icers assaulted (e(ber o+ youth organiation o+ the 'e9ublican Party&s organiation in /ori= /iorgi Pa9iash8ili on
9olitical grounds22 #rustee o+ the 8illage o+ ,8eri= Chiatura Munici9ality= Ilo 6itsade 8erbally and 9hysically assaulted coordinator o+ the 4e(ocratic
Mo8e(ent 0ni+ied /eorgiaD (e(ber o+ the 0M !as 9hysically abused by lio ,ologhash8ili= secretary o+ Mtsheta /a(gebeli23 According to /iorgi /8ila8a= head o+ the coalition /eorgian 4rea(&s o++ice= he !as +irst 8erbally later 9hysically abused by Abasha
Ma;oritarian MP and a (e(ber o+ the ational Mo8e(ent 4a8it 4arts(elide !ith his 9ersons that acco(9anied hi(
otably= I,FE4&s obser8ers conducted (onitoring at ,9%- election 9recincts o+ /eorgia !ith the use o+
computer tablets= +or the +irst ti(e in the history o+ (onitoring (ission= !hich turned out to be uitesuccess+ul.
n ctober %%= at 1%@<<= I,FE4 the conducted a si(ulation o+ the Election 4ay (onitoring (ethodology "
Parallel Vote #abulation >PT?. #he simulation
1. #ests the net!or connectionsD
%. the obser8ers& understanding ho! to re9ortD
*. the recei9t o+ ,M, (essages into the databaseD
-. it tests that all re9orts are co(9leteD and
7. it tests the uality o+ the data
4uring one hour o+ the si(ulation 99.= 9ercent o+ obser8ers success+ully sub(itted their re9orts. #here+ore= it is
sa+e to conclude that the si(ulation !as success+ul.
n the Election 4ay central o++ice o+ I,FE4 o9erated the +ollo!ing t!o centers@ PTF'M' $enter and
incidents center.
'e9orts recei8ed +ro( obser8ers in the +or( o+ text (essages !ere co(9iled in a s9ecial database and 8eri+ied
as needed by o9erators. Veri+ied in+or(ation !as 9rocessed and analyed by a tea( o+ ex9erts.
All 8iolations detected election 9recincts or districts on the Election 4ay !ere re9orted to the incidents center
di8ided according to regions and (anned by * lawyers. A+ter consulting !ith la!yers obser8ers too
corres9onding +urther actions +or each indi8idual 8iolation detected. La!yers entered in the database re9orts
a+ter they !ere 8eri+ied and 9rocessed. #he database entailed not only the in+or(ation about 8iolations re9orted
but also co(9laints +iled !ith election districts and 9recincts.
#hree non"go8ern(ental organiations%7 ;ointly o9erated elections 9ortal >!!!.elections9ortal.ge? on the
Elections 4ay= (a99ing 8iolations re9orted by indi8idual citiens and /s during the 9olling 9rocess.
A+ter all re9orts recei8ed +ro( the incidents center and the PTF'M' center !ere 9rocessed= !e released total
o+ < statements about 9olling 9rocess= trends identi+ied= 8iolations detected and 9olling results 9ro8ided to 9ublic by 9ublishing the( on I,FE4&s !ebsite= releasing the( in social net!ors and at 9ress"con+erences.
I,FE4 held the +ollo!ing < press-con&erences on the Election 4ay@
24 -7 election 9recincts in all election districts in #bilisiD +our election 9recincts in the regions /ori= Kutaisi and 6atu(i= one 9recinct
in each.25 I,FE4= /eorgian oung La!yers& Association= #rans9arency International /eorgia
!ith district co((issions. ne co(9laint !as +iled in court. I,FE4&s complaints mostly sought elimination
o& )iolations and holding commission chairperson0 secretary and other members liable.
Ma;ority o+ 8iolations or 11* cases in8ol8e i(9ro9er 9rocessing:+iling o+ election docu(ents= (ostly by +ailure
to +ill out control sheets 9ro9erly= 9lace the( in ballot boxes= to car8e a seal= and ha8e a 8oter sign along
a99ro9riate line on the 8oter list. Further= obser8ers detected dra!bacs in the 9rocess o+ 9re9aring su((ary
9rotocols in 1! cases. In 9articular= su((ary 9rotocols laced signatures and seals o+ co((ission (e(bers=
!hile in 1+ cases in+or(ation recorded in su((ary 9rotocols !as later !ritten o8er. In 1+ cases obser8ers+ound 9resence o+ unauthoried indi8iduals at election 9recincts. In 1* cases regulations that (andate 8oting
!ith 9ro9er docu(ents and sealing election docu(ents !ere 8iolated. otably= co(9ared to the %<1%
9arlia(entary elections= the %<1* 9residential elections !ere (ared by lo!er nu(ber o+ cases !here ining
!as not 8eri+ied:9er+or(ed= and ballot secrecy !as 8iolatedD nu(ber o+ cases !here obser8ers& rights !ere
restricted or 8oter signatures !ere 9re"(ade !ere also lo!er co(9ared to the last year&s elections. Ma;ority o+
8iolations detected by I,FE4 !ere obser8ed at 8arious election 9recinctsD ho!e8er= I,FE4 identi+ied the
In general= co(9laints +iled by I,FE4 !ere re)iewed in compliance with applicable legal procedures0 with
only minor e/ceptions. 4ECs exa(ined +actual circu(stances= su((oned and exa(ined !itnesses. I,FE4&s
re9resentati8e !ere allo!ed to attend the co(9laints re8ie! and ex9ress the 9osition o+ the organiation o8er
indi8idual co(9laints +iled.
CII. $onclusions and 8ecommendations
Election legislation it is i(9ortant to continue !oring +or i(9ro8ing election la!s and election en8iron(entincluding !ith res9ect to 8oter list regulationsD in 9articular= nor(s that a99ly to setting u9 o+ s9ecial 9recinct
should be elaborated and the list o+ 9eo9le authoried to 8ote at s9ecial 9recincts should be narro!ed do!n.
Further= (ilitary ser8ice(en should be 9rohibited +ro( 9artici9ating in (a;oritarian and sel+"go8ern(ent
elections i+ they are stationed in election 9recinct outside the 9lace o+ their registration. #his is an i(9ortant
issue in light o+ the u9co(ing sel+"go8ern(ent elections.
In order to rule out use o+ state resources in +a8or o+ a 9arty as (uch as 9ossible= 9artici9ation o+ 9ublic ser8ants
in agitation should be li(itedD in 9articular= list o+ 9olitical o++ice holders outlined by the Election Code should
be narro!ed do!n and s9eci+ic de+inition o+ the ter( Jagitation should be o++ered.
It is i(9ortant to re8ise dis9utes cha9ter o+ the Election Code in order to elaborate a(biguous nor(s and
s9eci+y nor(s that regulate election dis9utes to 9re8ent election co((issions +ro( !rong+ully a99lying these
nor(s and lea8ing co(9laints unexa(ined.
Indi8idual 9rocedures o+ 9olling should be si(9li+ied to 9re8ent (istaes by election co((ission (e(bers
!hich (ay be caused in 9art by co(9lexity o+ a99licable regulations.
The election system in 8ie! o+ the u9co(ing sel+"go8ern(ent elections it is i(9ortant to start discussions +or
choosing election syste(. In this res9ect= the inter"+actional tas +orce on elections should be restored or another
tas +orce should be set u9 !ithin the 9arlia(ent o+ /eorgia= in !hich all staeholders in addition to MPs !ill
be able to 9artici9ate and re8ie! in ex9iated (anner election syste(s to choose +ro(.
Election Administration +or the election ad(inistration to de8elo9 into a uali+ied and ob;ecti8e agency
regulations +or recruit(ent o+ election ad(inistration (e(bers at all le8els should be re8ised. e! regulations
should +ocus on recruit(ent based on 9ro+essional ualities to 9ro(ote 9ro+essionalis( o+ election co((issions
and their +reedo( +ro( 9olitical in+luence.
In order to eli(inate all 9rocedural +la!s o+ the Elections 4ay= (ore attention should be 9aid to training o+ PEC
(e(bers.
oters7 2ist I,FE4 belie8es that signi+icant !or should be 9er+or(ed to i(9ro8e 8oter list= including
through door"to"door ca(9aigns and use o+ bio(etric in+or(ation +or 9re9aring 8oter lists. Further= the
authorities= the CEC= in 8ie! o+ interests o+ 8oters residing abroad= should co(e u9 !ith alternati8e (eans o+