sajaro politikis dokumentebi POLICY PAPER SERIES

sajaro politikis dokumentebi POLICY PAPER SERIES 2016

saqartvelos sajaro moxeleta profesiuli SesaZleblobebis zrda gadawyvetilebis mirebasa da molaparakebebis warmartvis teqnikasi CAPACITY-BUILDING OF THE GEORGIAN LEADERSHIP COMMUNITY FOR IMPROVED DECISION-MAKING AND NEGOTIATION SKILLS winamdebare gamocemasi warmodgenili politikis dokumentebi Seiqmna proeqtis _ `saqartvelos sajaro moxeleta profesiuli SesaZleblobebis zrda gadawyvetilebis mirebasa da molaparakebebis warmartvis teqnikasi~ _ farglebsi The Public Policy Paper Series includes policy documents developed within the Capacity-Building of the Georgian Leadership Community (CBGL) project proeqti xorcieldeba SvedeTis saertasoriso ganvitarebisa da TanamSromlobis saagentos finansuri mxardawerit The Project is funded by the Swedish International Development Cooperation Agency

samecniero xelmzrvanelebi: ekaterine metreveli kaxa gogolasvili merab kakulia Mentors: Ekaterine Metreveli Kakha Gogolashvili Merab Kakulia redaqtori: Editor: rusudan margisvili Rusudan Margishvili teqnikuri redaqtori: Technical Editor: artem meliq-nubarovi Artem Melik-Nubarov saavtoro uflebebi daculia da ekutvnis saqartvelos strategiisa da saertasoriso urtiertobebis kvlevis fonds. werilobiti nebartvis garese wignis arc erti nawili ar SeiZleba gadaibewdos nebismieri, mat Soris, eleqtronuli an meqanikuri formit. saqartvelos strategiisa da saertasoriso urtiertobata kvlevis fondi 2016 weli All rights reserved and belong to Georgian Foundation for Strategic and International Studies. No part of this publication may be reproduced in any form, including electronic and mechanical, without the prior written permission of the publisher Copyright 2016 Georgian Foundation for Strategic and International Studies

proeqtis Sesaxeb programa `saqartvelos sajaro moxeleta profesiuli SesaZleblobebis zrda gadawyvetilebis mirebasa da molaparakebebis warmartvis teqnikasi~ miznad isaxavs daexmaros saqartvelos mtavrobas martvis sferosi arsebuli problemebis dazlevasi. proeqti itvaliswinebs sasualo rgolis sajaro moxeleta da samoqalaqo sazogadoebis warmomadgenelta CarTvas politikis SemuSavebisa da molaparakebis warmartvis teqnikis dasaxvew praqtikul mecadineobebsi. es mecadineobebi moicavs ara marto Tanamedrove midgomebis danergvas qartul sajaro administraciasa da sajaro politikasi, aramed saxelmwifoebrivi mnisvnelobis sakitxebze sajaro politikis dokumentebis SemuSavebas. proeqti aseve xels Seuwyobs qartvel sajaro moxeletatvis martvis Tanamedrove midgomebis Sesaxeb codnis, praqtikisa da unarebis gacnobas. programas afinansebs SvedeTis saertasoriso ganvitarebisa da TanamSromlobis saagento (SIDA) da axorcielebs saqartvelos strategiisa da saertasoriso urtiertobebis kvlevis fondi (rondelis fondi) estonetis diplomatiis skolas- Tan (ESD) partniorobit. programa xels uwyobs sajaro mmartvelobis iseti kulturis Camoyalibebas, romelic iqneba angarisvaldebuli da gaitvaliswinebs qartuli sazogadoebis sawiroebebs. garda amisa, programa miznad isaxavs gadawyvetilebis mirebis sferosi qartuli mmartvelobis SesaZleblobebis gazlierebas, rom gadawyvetilebis mirebis procesi gaxdes ufro gamwvirvale da iyos moqnili garemoebata cvlilebis Sesabamisad. programa aseve moicavs saqartvelos saxelmwifo seqtorebsa da organizaciebs Soris TanamSromlobis gaumjobesebas da saxelmwifo moxeleta SesaZleblobebis gazrdas, rata saqartvelo uket warmocndes saertasoriso doneze sxva saxelmwifoebtan Tu saertasoriso organizaciebtan urtiertobisas. programa xorcieldeba rva wlis manzilze (2009-2016 ww.). ABOUT THE PROJECT Capacity-building of the Georgian Leadership Community for Improved Decision-making and Negotiation Skills is designed to assist the Georgian government in addressing its governance challenges. This multi-component initiative aims to introduce and reinforce modern management skill sets, proficiency and practice among Georgian public officials. The project engages directly with middle level public servants and civil-society representatives through practical in-service training in policy development and negotiation techniques. Apart modernization of the Georgian public administration and public policymaking, the project activities seek to deliver actionable policy documents on the issues of national importance. The project activities and the policy initiatives will be consistent with and supportive of principles of gender and diversity equality. The program is funded by the Swedish International Development Cooperation Agency (SIDA) and is implemented by the Georgian Foundation for Strategic and International Studies (Rondeli Foundation) in partnership with the Estonian School of Diplomacy (ESD). The program will promote a likeminded leadership culture that is accountable and oriented to meeting the needs of the Georgian society. Furthermore, the program aims at strengthening the Georgian government capacity in decision-making, as well as increasing its transparency and flexibility in responding to the changing circumstances. In addition, this initiative intends to improve organizational cooperation among the Georgian public sectors and the country s interaction with other states and international organizations. The program is implemented during eight years (2009 2016).

saarcevno administraciis dakompleqtebis reforma: politikuri vs profesiuli wesit dakompleqteba elene nijaraze reziume winamdebare politikis dokumentsi ganxilulia saarcevno administraciis dakompleqtebastan dakavsirebit arsebuli problemebi. rogorc cnobilia, saarcevno administracias wamyvani roli aqvs samartliani, gamwvirvale da demokratiuli arcevnebis Catarebis processi, rac mnisvnelovania qveynis Semdgomi ganvi- Tarebisa da evroatlantikur sivrcesi integraciistvis. aqedan gamomdinare, mnisvnelovania saarcevno administracia sargeblobdes sazogadoebis marali ndobit. nebismieri kitxva saarcevno administraciis miukerzoebeli da obieqturi musaobis Sesaxeb TavisTavad ewvqves ayenebs arcevnebis samartlianad Catarebas da mosaxleobasi acens undoblobas rogorc Tavad organos, ise arcevnebis mimart. Cvens nasromsi warmodgenilia saarcevno administraciis dakompleqtebastan dakavsirebit arsebuli problemebi da ganxilulia am problemebis gadawris alternatiuli gzebi. alternativebis saxit gamoyofilia saarcevno administraciis dakompleqtebis sami modeli, kerzod: srulad profesiuli nisnit dakompleqteba, srulad politikuri partiebit dakompleqteba da moqmedi Sereuli modeli. alternativebis dadebiti da uaryofiti mxareebis gaanalizebis Sedegad gamovlinda, rom problemebis gadasawrelad da saarcevno administraciisadmi sazogadoebis meti ndobis uzrunvelsayofad sauketeso gzas warmoadgens administraciis srulad profesiuli nisnit dakompleqteba. alternativebis ganxilvisas aseve gamoviyenet danaxajebi-efeqtianobis analizi. bolos dokumentsi warmodgenilia rekomendaciebi, rac xels Seuwyobs Ser- Ceuli sauketeso alternativis warmatebit ganxorcielebas. Sesavali saqartvelosi saxelmwifo xelisuflebis wyaroa xalxi, romelic Tavis Zalauflebas axorcielebs referendumis, usualo demokratiis sxva formebisa da Tavisi arceuli warmomadgenlebis mesveobit. 1 arcevnebisa da referendumis samar- Tlianad da obieqturad Catareba nebismieri demokratiuli saxelmwifos arsebobis qvakutxedia da am mxriv arc saqartveloa gamonaklisi. saqartvelosi arcevnebisa da referendumis Catarebas Tavisi uflebamosilebis farglebsi uzrunvelyofs saarcevno administracia. saqartvelos 1 saqartvelos konstitucia, muxli 5. 39

saarcevno kodeqsis Tanaxmad, saarcevno administracia aris administraciuli organo, romelic Tavisi uflebamosilebis farglebsi damoukidebelia sxva saxelmwifo organoebisagan. 2 kanonmdeblobit gatvaliswinebuli damoukideblobis aseti marali xarisxi ganpirobebulia im mnisvnelovani funqciit, rac dakisrebuli aqvs saarcevno administracias. 40 swored am funqciis efeqturad gansaxorcieleblad aris aucilebeli, rom saarcevno administracia dakompleqtebuli iyos kvalificiuri, damoukidebeli da miukerzoebeli kadrebit. es aris ert-erti winapiroba imisa, rom saarcevno administraciam Tavisi uflebamosileba profesionalurad da obieqturad Seasrulos. veneciis komisiis saarcevno sakitxebsi sauketeso praqtikis kodeqssi arnisnulia, rom damoukidebeli da miukerzoebeli saarcevno komisiebi unda Seiqmnas centraluri donidan saubno donis CaTvliT, rata uzrunvelyofili iyos arcevnebis satanadod Catareba. 3 mxolod gamwvirvaloba, miukerzoebloba da politikurad motivirebuli manipulaciebisgan damoukidebloba uzrunvelyofs saarcevno procesis satanadod administrirebas winasaarcevno periodidan arcevnebis Sejamebis dasrulebamde. 4 amrigad, damoukidebloba da miukerzoebloba aris is saertasoriso standarti, romelsac unda akmayofilebdes saarcevno administracia. saqartvelosi saarcevno administracia Sedgeba centraluri saarcevno komisiis, saolqo saarcevno komisiebisa da saubno saarcevno komisiebisagan. 5 TiToeuli donis komisiasi Sedis 13 wevri, romeltagan 6 wevri airceva konkursis safuzvelze (e.w. profesiuli nisnit danisnuli wevrebi), xolo 7 wevrs nisnaven politikuri gaertianebebi, romlebic dafinansebas `moqalaqeta politikuri gaertianebebis Sesaxeb~ saqartvelos organuli kanonis Sesabamisad ireben saxelmwifo biujetidan. 6 saarcevno administraciis dakompleqtebasi politikuri komponentis arsebobas gasuli wlebis ganmavlobasi araertxel gamouwvevia kitxvebi mis damoukidebel da miukerzoebel saqmianobastan dakavsirebit. saarcevno komisiis wevrebis araprofesionalizmi xsir SemTxvevaSi aixsneba politikuri gaertianebebis mier wevrebis danisvnis wesit da ertmnisvnelovnad uaryofit gavlenas axdens saarcevno administraciis saqmianobasa da mis mimart ndobis xarisxze. saarcevno administraciis dakompleqtebis reforma didi xania arasamtavrobo organizaciebisa da politikuri partiebis motxovnis sagans warmoadgens. saqartvelos parlamentsi 2013 wlis TebervalSi saarcevno sakitxebze momusave interfraqciuli jgufi Seiqmna, romlis mizansac sxvadasxva dainteresebuli mxaris monawileobit mtel rig sakitxebze saarcevno kodeqssi cvlilebebis momza- 2 saqartvelos organuli kanoni saqartvelos saarcevno kodeqsi, muxli 7. 3 European Commission for Democracy Through Law (Venice Commission), Code of Good Practice in Electoral Matters, October 2002, para. 71. 4 iqve. 5 awaris avtonomiur respublikasi aseve umarlesi saarcevno komisia (usko). 6 saqartvelos saarcevno kodeqsi, mux. 10, 12, 13, 20, 24.

deba da arsebiti saarcevno reformis ganxorcieleba warmoadgenda. gansaxilveli sakitxebis siasi Sedioda aseve saarcevno administraciis dakompleqtebis reforma, Tumca jgufma ise daasrula musaoba, rom arnisnuli sakitxis ganxilva ar momxdara. mosalodneli iyo, rom sakitxi ganexila momdevno interfraqciul jgufs, romelic 2013 wlis 26 dekembers Seiqmna, magram Temis irgvlil msjeloba arc am SemTxvevaSi gamartula. Cveni dokumentis mizania saarcevno administraciis dakompleqtebis moqmed westan dakavsirebit arsebuli problemebis ganxilva da mati gadawris SesaZlo gzebis gaanalizeba; aseve _ analizis safuzvelze problemis gadasawrelad sauke- Teso rekomendaciebis SemuSaveba. dokumentze musaobis processi SeviswavleT da gamoviyenet adgilobrivi arasamtavrobo organizaciebis mier SemoTavazebuli mosazrebebi da sxvadasxva mnisvnelovani informacia. problemis arwera saqartvelosi saarcevno administraciis mier mirebuli gadawyvetilebebi xsirad aris kritikis sagani mati mikerzoebulobisa Tu aratanamimdevrulobis gamo. msgavsi saxis praqtika, garda imisa, rom dapirispirebas iwvevs politikur gaertianebebs Soris da kritikas imsaxurebs arasamtavrobo organizaciebis mxridan, aseve uaryofitad aisaxeba saarcevno administraciis mimart sazogadoebis ndobis xarisxze. umetes SemTxvevebSi amis mizezad saarcevno administraciis dakompleqtebis wesi saxeldeba, romelic komisiebis SemadgenlobaSi politikuri gaertianebebis mier wevrebis danisvnas usvebs. aratanmimdevruli gadawyvetilebis mirebis bolo gaxmaurebul faqti moxda 2014 wlis adgilobrivi TviTmmarTvelobis arcevnebze _ sakitxi exeboda ceskos mier saarcevno subieqtebis, kerzod, gamgeblis da merobis kandidatebis registracias. saarcevno kodeqsis is norma, romelic kandidatebistvis bolo ori wlis ganmavlobasi mudmivad cxovrebis cenzs adgens, ceskom mmartveli politikuri gaertianebis sasargeblod da opoziciuri politikuri partiis sawinaarmdegod ganmarta. 7 amgvari gadawyvetileba xels uslis ara marto saarcevno kanonmdeblobis ertgvarovan gamoyenebas da swori praqtikis Camoyalibebas, aramed aseve ewvs acens, rom komisiis wevrebi gadawyvetilebis mirebisas politikuri interesebit xelmzrvaneloben. arnisnuli ar aris gamonaklisi, vinaidan, savaraudod, politikuri motivit gadawyvetilebebi sxva arcevnebzec miuriat. magalitad, asetad Sefasda 2012 wlis saparlameto arcevnebistvis koalicia `qartuli ocnebistvis~ saarcevno nomris 7 2014 wlis adgilobrivi TviTmmarTvelobis organoebis arcevnebis monitoringis saboloo angarisi, samar- Tliani arcevnebisa da demokratiis saertasoriso sazogadoeba, gv. 20, ix. www.isfed.ge/main/777/geo/ 41

miniwebisa da arcevnebis dres saarcevno ubanze foto da video gadarebis SezRudvis Sesaxeb mirebuli gadawyvetilebebi. 8 saarcevno administraciis dakompleqtebastan dakavsirebit arsebulma problemam askard icina Tavi 2012 wlis saqartvelos parlamentis arcevnebis Semdeg. rogorc ukve arinisna, saarcevno kodeqsis Tanaxmad, saarcevno administraciasi 7 wevrs nisnaven politikuri gaertianebebi. arcevnebis Sedegebidan gamomdinare, koalicia `qartulma ocnebam~ 7 wevridan 6 wevris danisvnis ufleba miiro. opoziciuri politikuri partiebidan mxolod ertma partiam, kerzod, `ertianma nacionalurma mozraobam~ danisna wevri saarcevno administaciasi. am faqtma daadastura, rom moqmedi wesi realurad qmnis imis SesaZleblobas, rom xelisuflebasi myofi partia/partiebi da opoziciuri partiebi aratanabar mdgomareobasi armocndnen saarcevno administraciasi. opoziciur partiebs naklebi SesaZlebloba ezlevat gavlena moaxdinon administraciis mier mirebul gadawyvetilebebze. es, Tavis mxriv, saarcevno administraciis mimart politikuri speqtris dabal ndobas iwvevs. gasuli arcevnebis gamocdilebidan gamomdinare, problemas aseve warmoadgens politkuri partiebis mxridan saarcevno komisiebsi profesiuli nisnit im pirta danisvnis mcdeloba, romlebic konkretuli partiis mxardamwerebi arian an sxvadasxva arcevnebze partiis warmomadgenlebi iyvnen saarcevno administraciasi. aseve, 2016 wlis TebervalSi saolqo saarcevno komisiebis wevrta SesarCevi konkursis Sedegad ceskos mier profesiuli nisnit arceuli wevrebis mnisvnelovan nawils saarcevno administraciasi musaobis partiuli gamocdileba armoacnda, kerzod, komisiis 182 arceuli wevridan 67 wevri warsulsi sxvadasxva politikuri partiis mier iyo danisnuli saarcevno komisiasi. 9 arasamtavrobo organizaciebma daafiqsires iseti SemTxvevebic, rodesac partiebi da/an mat mier danisnuli wevrebi zewolas axdendnen komisiis sxva wevrebze, rom mat komisiasi partiistvis sasurveli kandidatebis danisvnisatvis daewirat mxari. 10 politikuri nisnit moxda agretve 2015 wels awaris umarlesi saarcevno komisiis (uskos) wevrebis arcevac. 11 awaris avtonomiuri respublikis kanonis Tanaxmad, uskos Tavmjdomareobis da wevrobis kandidati upartio unda iyos, rac ar warmoadgens mxolod formalur motxovnas da piris politikur neitralurobas gulisxmobs. miuxedavad amisa, daregistirebuli 24 kandidatidan 8 2012 wlis 1 oqtombris saparlamento arcevnebis monitoringis saboloo angarisi, gv. 19, samartliani arcevnebisa da demokratiis saertasoriso sazogadoeba, ix. www.isfed.ge/main/330/geo/ 9 konkursis Sesaxeb detaluri informacia ix. saolqo saarcevno komisiis wevrta SesarCevi konkursis monitoringis angarisi, samartliani arcevnebisa da demokratiis saertasoriso sazogadoeba, www.isfed.ge/ main/1034/geo/ arnisnuli faqti mocemulia aseve saqartvelos axalgazrda iuristta asociaciis saolqo saarcevno komisiebis SesarCevi konkursis SefasebaSi, ix. www.gyla.ge/ge/post/saia-saolqo-saarchevno-komisiebis-shesarchev-konkurss-afasebs 10 2013 wlis 27 oqtombris saprezidento arcevnebi, winasaarcevno periodis monitoringis mexute Sualeduri angarisi, `samartliani arcevnebisa da demokratiis saertasoriso sazogadoeba, ix. www.isfed.ge/main/472/geo/ 11 gancxadeba awaris umarlesi saarcevno komisiis mier Catarebuli konkursis Sedegebis Sesaxeb, ix. www.isfed.ge/main/929/geo/ 42

19 piris saqmianoba politikur partias ukavsirdeboda. sabolood, uskos arceuli sami wevri sazogadoebistvis konkretul politikur partiebtan asocirdebian. amgvari praqtika sazogadoebasi bunebrivad acens ewvs saarcevno administraciis mikerzoebis Sesaxeb. TiTqmis yvela arcevnebis Semdeg arasamtavrobo organizaciebi da sxva dainteresebuli mxareebi ert-ert problemad komisiis wevrebis dabal kvalifikacias asaxeleben da amas, umetes SemTxvevaSi, komisiebsi politikuri partiebis mier wevrebis danisvnis wess abraleben. politikur partias SeuZlia gamoiwvios Tavisi danisnuli wevri, risi gaketebac kenwisyramde 15 drit adre ikrzaleba. 12 am vadis dacvit partiam SeiZleba ramdenjerme Secvalos komisiasi danisnuli Tavisi wevri. partiebis mier wevrebis Canacvlebis gamo ver xerxdeba axali wevrebis satanadod momzadeba, isini ver gadian Sesabamis treningebs, ritac SeiZleba aixsnas kenwisyris dres sxvadasxva saxis saarcevno procedurebis darrvevebi. zemoarnisnuli problemebi yovel arcevnebze icens Tavs da ertobliobasi cxadyofs administraciis dakompleqtebis wesis gadaxedvis aucileblobas. gamovlenili problemebi, rig SemTxvevebSi, SeiZleba kanonmdeblobis formalur dar- Rvevas ar warmoadgendes, magram dafiqsirebuli tendeciebi uaryofitad aisaxeba saarcevno administraciis miukerzoebel da obieqtur musaobaze. problemis gadawris gzebi (alternativebi) saarcevno administraciis dakompleqtebastan dakavsirebit arsebuli problemebi askaraa da mogvarebas sawiroebs. am miznit ganvixilavt problemis gadawris sam alternatiul gzas, mati dadebiti da uaryofiti mxareebis gatvaliswinebit. es alternativebia: 1) saarcevno administraciis mtlianad profesiuli nisnit dakompleqteba; 2) saarcevno administraciis mtlianad politikuri partiebis mier dakompleqteba; 3) arsebuli mdgomareobis status-quo-s SenarCuneba. I alternativa _ saarcevno administraciis mtlianad profesiuli nisnit dakompleqteba problemebis gadawris ert-ert mtavar alternativad didi xania ganixileba saarcevno administraciis srulad profesiuli nisnit dakompleqteba. amis mizani saarcevno administraciis mimart sazogadoebis marali ndobis uzrunvelyofaa. aseti Zireuli reformis gatarebam unda gamoricxos politikuri motivit gadawyvetilebebis mirebis albatoba da imit spekulacia, rom Tavisi funqciis ganxorcielebisas saarcevno administraciis wevrebi mikerzoebit moqmedeben. amis sapirispirod arsebobs varaudi, rom profesiuli nisnit danisnulma pirmac 12 saarcevno kodeqsi, muxli 29. 43

SeiZleba politikuri interesebit ixelmzrvanelos. aseti varaudi ar aris safuzvels moklebuli, vinaidan profesiuli kriteriumit SerCeuli piric SeiZleba araketilsindisierad asrulebdes Tavis valdebulebas, Tumca amis albatoba naklebia. am siaxlem SeiZleba absoluturad ver gamoricxos riskebi, magram misi mizania iseti regulaciis daweseba, romelic ufro metad uzrunvelyofs saarcevno administraciis neitralurobas da miukerzoeblobas. profesiuli nisnit komisiis wevrebis danisvna ar SezRudavs politikuri partiebis SesaZleblobas daakvirdnen kenwisyris dris procedurebs da moaxdinon satanado reagireba, rac mati interesis sagania, vinaidan mat SesaZlebloba eqnebat hyavdet warmomadgenlebi saarcevno komisiebsi, rogorc es moqmedi kanonitaa gansazrvruli. profesiuli nisnit komisiis wevrebis danisvnisas mati damoukideblobis uzrunvelsayofad ert-ert motxovnas unda warmoadgendes is, rom piri bolo 2-3 wlis ganmavlobasi ar iyos politikuri partiis wevri da/an partiis mier wardgenili kandidati arcevnebze. aseve, SezRudva SeiZleba dawesdes im pirebis danisvnaze, romlebic politikuri partiebis mier sxvadasxva donis komisiasi iyvnen danisnuli wevrebad. arsanisnavia, rom ori ukanaskneli informaciis gadamowmeba SesaZlebelia saarcevno administraciasi da SedarebiT martivia. rtulia partiis wevrobis gadamowmeba, vinaidan ar arsebobs partiis wevrta ertiani reestri. informaciis gamotxova partiebidan damatebit xarjebtan, drosa da sirtuleebtan aris dakavsirebuli. aqedan gamomdinare, Tavad kandidati unda iyos valdebuli ganacxados Tavisi partiuli kutvnilebis Sesaxeb, rogorc es dres regulirdeba. Tu arcevis Semdeg gamovlinda, rom pirma damala informacia, mas unda Seuwydes uflebamosileba da unda daekisros administraciuli pasuxismgebloba. mocemuli versiis sawinaarmdego arguments SeiZleba warmoadgendes is, rom mxolod profesiuli nisnit dakompleqtebisas rtuli iqneba msurveli kandidatebis mozidva, rac problemas ar warmoadgens politikuri partiebis mier wevrebis danisvnisas. es argumenti safuzvels moklebulia, rac profesiuli nisnit saolqo komisiis wevrta arcevis gasulma konkursmac daadastura, romlis drosac 193 vakantur Tanamdebobaze gancxadeba 771 msurvelma Seitana. 13 alternativa itvaliswinebs aseve administraciis wevrta raodenobis Semcirebas, magalitad, 13 wevridan _ 7 wevramde. pirvel rigsi, es exeba ceskosa da saolqo saarcevno komisiebs, vinaidan mati funqcionirebistvis 13 wevri ar aris sawiro da zedmet xarjs warmoadgens saxelmwifostvis. magalitad, mxolod ceskos wevrebis raodenobis SemcirebiT saxelmwifo dazogavs daaxloebit 455,446 14 lars weliwadsi, romelic SeiZleba ufro mizanmimartulad isev saarcevno admin- 13 2015 wlis dekembersi, ceskom saolqo-saarcevno komisiis wevrta SesarCevi konkursi gamoacxada, rac gamowveuli iyo 193 wevrisatvis 5-wliani uflebamosilebis vadis gasvlit. gamocxadebul 193 poziciaze 771-ma kandidatma Seitana gancxadeba. 14 arnisnuli monacemi datvlilia 2015 wlis ceskos wevrebis anazraurebis Sesaxeb ceskos mier mowodebuli informaciis mixedvit. 44

istraciam gamoiyenos. wevrebis raodenobis Semcireba xels Seuwyobs ufro kvalificiuri kadrebis SerCevasac. politikuri mxardaweris kutxit es modeli ufro misarebi iqneba opoziciuri partiebistvis, romlebsac komisiasi wevris danisvnis naklebi SesaZlebloba aqvt an, Tu aqvt es SesaZlebloba, gavlenas ver axdenen komisiis gadawyvetilebaze. grzelvadian perspeqtivasi modeli misarebi unda iyos yvela partiistvis, vinaidan winaswar arc ert partias ar aqvs garantia, rom arcevnebsi sakamrisi raodenobis xmebs miirebs komisiasi wevris dasanisnad. Sesabamisad, maqsimalurad neitraluri da politikuri gavlenisgan Tavisufali organos arseboba yvelas unda ainteresebdes. amastan, dainteresebuli mxareebis monawileobit garkveuli formatis Seqmna, mattan SeTanxmeba da cvlilebebis ganxorcileba SeiZleba naklebad ainteresebdes xelisfulebas. arnisnuli alternativis ganxorcieleba garkveul vadas moitxovs, vinaidan sawiro iqneba dainteresebul mxareebs Soris SeTanxmeba modelis konkretul detalebze da aseve, sakanonmdeblo cvlilebebis momzadeba da mireba, rac politikuri nebis SemTxvevaSi sirtules ar warmoadgens. savaraudod, am process 4-5 Tve daswirdeba. II alternativa _ saarcevno administraciis mtlianad politikuri partiebit dakompleqteba problemebis gadawris ert-ert gzad SeiZleba dasaxeldes saarcevno administraciis ara nawilobriv, aramed mtlianad politikuri nisnit dakompleqteba. aset SemTxvevaSi SeiZleba gaizardos im politikuri partiebis raodenoba, romlebsac ufleba eqnebat wevrebi danisnon saarcevno komisiebsi. es uzrunvelyofs meti partiis monawileobas saarcevno administraciis saqmianobasi. amastan, partiebis raodenobis gasazrdelad sawiro iqneba axali kriteriumebis dadgena, ritac ganisazrvreba, Tu romel partiebs eqnebat wevrebis danisvnis ufleba. mocemuli versiis dadebiti mxare isaa, rom, savaraudod, mas mxardawera eqneba politikuri partiebisagan. gadawyvetilebis mirebis SemTxvevaSi, cvlilebis ganxorcieleba martivia da did dros ar moitxovs. msgavsad pirveli alternativisa, mtlianad am process SeiZleba 4-5 Tve daswirdes. am modelis mtavar uaryofit mxares warmoadgens is, rom igi ver uzrunvelyofs sazogadoebis ndobis ganmtkicebas da gazrdas saarcevno administraciis mimart. piriqit, SeiZleba daazaralos misi imiji da sazogadoebasi gaamyaros mosazreba, rom es organo mtlianad politikuri interesebit da miznebit moqmedebs. amastan, Teoriulad isev SesaZlebeli iqneba, rom romelime partias ufro meti wevri hyavdes administraciasi, rac gadawyvetilebis mirebisas sxva partiebtan SedarebiT upirates mdgomareobasi Caayenebs. aseti situacia bunebrivad iwvevs usamartlobis gancdas da xels uwyobs ewvebis warmoqmnas, rom gadwyvetileba ara obieqturad, aramed viracis politikuri interesebis Sesabamisad miireba. 45

III alternativa _ arsebuli mdgomareobis _ status-quo-s SenarCuneba es alternativa gulisxmobs administraciis dakompleqtebis moqmedi wesis SenarCunebas. am SemTxvevaSi naklebad savaraudoa, rom arsebuli problemebi armoifxvras. rogorc meore alternativis SemTxvevaSi, aqac SesaZlebeli iqneba, rom partiebistvis dawesebuli kvotidan (7 wevri) umravlesoba ertma politikurma gaertianebam danisnos. isev iarsebebs ewvebi administraciis mier mirebuli gadawyvetilebebis miukerzoeblobis da misi wevrebis politikuri neitralitetis Sesaxeb. gamoricxuli araa, rom partiebis mier danisnulma wevrebma saqmianobisas politikuri interesit ixelmzrvanelon. es sazogadoebasi gamoiwvevs davas administraciis obieqturobis Sesaxeb da kritikas, rac uaryofit gavlenas moaxdens administraciis mimart sandoobis xarisxze. amastan, meti albatoba arsebobs, rom moqmedi modelis SenarCunebaze politikuri gadawyvetilebis mireba ufro martivi iyos, vidre arsebiti reformis ganxorcielebaze, rac mocemuli modelis dadebit mxares warmoadgens. moqmedi wesis SenarCuneba ar moitxovs ganxilvebs dainteresebul mxareebtan, mattan SeTanxebas sauketeso versiaze da sakanonmdeblo cvlilebebis momzadebasa da mirebas. alternativebis dadebiti da uaryofit mxareebis ganxilvis garda, samive alternativis uket gasaazreblad da mat Soris sauketesos gamosavlenad gamoyenebul iqna efeqtianobis multifaqtoruli analizi. 15 kriteriumebi miukerzoebloba 25% sazogadoebis ndobis gazrda 30% xelisuflebis mxardawera 20% opoziciuri partiebis mxardawera 10% xarjebis Semcireba 10% vadebi 5% alternativebi I (1-5 qula) II (1-5 qula) III (1-5 qula) 5X25=125 1X25=25 3X25=75 5X30=150 1X30=30 3X30=90 2X20=40 3X20=60 4X20=80 2X10=20 4X10=40 3X10=30 5X10=50 1X10=10 1X10=10 3X5=15 3X5=15 5X5=25 alternativis jamuri qula 400 180 310 15 analizis miznit ganisazrvra kriteriumebi, ris mixedvitac unda Sefasdes TiToeuli alternativa. kriteriumebs eniweba wona mati mnisvnelobis mixedvit, rac subieqtur Sexedulebazea damokidebuli. amas- Tan, 5-quliani sistemit fasdeba ramdenad akmayofilebs alternativebi gansazrvrul kriteriumebs, rac obieqtur Sefasebas unda emyarebodes. qula, romelsac irebs alternativa, kriteriumebis mixedvit unda gamravldes mocemuli kriteriumis wonaze. alternativisatvis yvela kriteriumis mixedvit miniwebuli qulebi unda Seikribos. alternativa, romelic yvelaze maral qulas miirebs, CaiTvleba sauketesod. 46

mocemuli cxrilidan Cans, rom mirebuli qulebis mixedvit pirveli alternativa aris sauketeso, miuxedavad imisa, rom didi gansxvaveba araa masa da mesame alternativas Soris qulebis TvalsazrisiT. amastan, meore alternativas mieniwa yvelaze dabali qula da Sesabamisad, yvelaze miurebelia. rekomendaciebi ganxiluli alternatiuli versiebidan problemebis gadawris sauketeso gzad, romelic grzelvadian perspeqtivasi uzrunvelyofs saarcevno administraciis mimart ndobis gazrdasa da misi, rogorc miukerzoebeli organos, stabiluri imijis Seqmnas, gamoikveta saarcevno administraciis srulad profesiuli nisnit dakompleqteba. saarcevno administraciis dakompleqtebis reformis warmatebit gansaxorcielebad mnisvnelovania Semdegi sakitxebis gatvaliswineba: unda Seiqmnas samusao jgufi xelisfulebis, arasamtavrobo organizaciebisa da opoziciuri politikuri partiebis (saparlamento, arasaparlamento) monawileobit, romlebic ganixilaven da SeimuSaveben sakanonmdeblo cvlilebebs; cvlilebebis momzadebisas unda ganisazrvros vin daakompleqtebs saarcevno administracias, magalitad, ceskos SemTxvevaSi yvela wevrs aircevs parlamenti Tu SeiZleba xelisuflebis sxva Stoebsac miecet wevrebis danisvnis ufleba. unda dadgindes rogor moxdeba kandidatebis SerCeva da Sefaseba. es sakitxebi gadasawyveti iqneba aseve qveda donis saarcevno komisiebtan dakavsirebitac; sasurvelia ceskos SemTxvevaSi parlamentis mier wevrebis arcevistvis dadgindes marali kvorumi, rom gadawyvetilebis mirebasi uzrunvelyofili iyos opoziciuri Zalebis monawileoba; saarcevno komisiis wevris ert-ert sakvalifikacio motxovnas unda warmoadgendes is, rom piri ar iyos bolo 2-3 wlis ganmavlobasi politikuri partiis wevri da/an partiis mier wardgenili kandidati arcevnebze; sasurvelia reformis mxardasawerad, saarcevno administraciis ndobis gasazrdelad, meti dainteresebuli da kvalificiuri kadris mosazidad sainformacio kampaniis Catareba, risi uzrunvelyofac SeiZleba donori organizaciebis finansuri daxmarebit; sawiroebis SemTxvevaSi, meti efeqturobisa da sirtuleebis Tavidan asacileblad, SesaZlebelia cvlilebebis etapobrivad ganxorcieleba, magalitad, pirvel etapze srulad profesiuli nisnit mxolod erti donis saarcevno administraciis dakompleqteba. amastan, ar aqvs mnisvneloba, romeli donis saarcevno komisia iqneba pirveli. 47

daskvna saqartvelosi, sadac saarcevno procesebi umetes SemTxvevaSi polarizebul garemosi, politikur aqtorebs Soris dapirispirebisa da urtiertbraldebebis fonze mimdinareobs, didi mnisvneloba aqvs imas, rom saarcevno administraciis mimart arsebobdes sazogadoebis stabiluri da marali ndoba. amis uzrunvelsayofad aucielebelia saarcevno administracia miukerzoeblad musaobdes. es aris ert-erti winapirobaa imisa, rom kitxvis nisnebi ar gacndes saarcevno administraciis mier Sesrulebeul samusaostan dakavsirebit da ewv qves ar dadges arcevnebis samartlianad da demokratiulad Catareba, rac aucilebelia yvela demokratiul saxelmwifosi. amas gansakutrebuli mnisvneloba aqvs ganvitarebis etapze myofi iseti qveynistvis, rogoric saqartveloa. politikis dokumentis mizani iyo im problemebis Seswavla da gaazreba, rac arsebobs saarcevno administraciis dakompleqtebis processi da rac kitxvebs warmoqmnis am organos damoukideblad da obieqturad funqcionirebis Sesaxeb. alternativebis ganxilvis Sedegad gamovlinda, rom arsebuli problemebis gadawris sauketeso gza saarcevno administraciis profesiuli nisnit dakompleqtebaa. arnisnuli xels Seuwyobs saarcevno administraciis politikurad neitralur organod Camoyalibebas da ufro metad kvalificiuri da gamocdili kadrebit dakompleqtebas. sabolood, es gamoiwvevs saarcevno administraciis mimart sazogadoebis ndobis gazrdas, rac pirdapirproporciulad nisnavs met ndobas Catarebuli arcevnebis mimart. amrigad, am alternativis mireba win gadadgmuli nabiji iqneba saarcevno administraciis Semdgomi ganvitarebistvis. arsanisnavia, rom am modelis danergva ar moitxovs saxelmwifo biujetidan damatebiti xarjebis garebas da politikuri nebis arsebobis SemTxvevaSi misi warmatebit ganxorcieleba martivad SeiZleba. 48

bibliografia 1. saqartvelos konstitucia. 2. saqartvelos organili kanoni `saqartvelos saarcevno kodeqsi~. 3. European Commission for Democracy Through Law (Venice Commission), Code of Good Practice in Electoral Matters, adopted by the Venice Commission at its 52 nd session, 18-19 October, 2002. 4. 2014 wlis adgilobrivi TviTmmarTvelobis organoebis arcevnebis monitoringis saboloo angarisi, samartliani arcevnebisa da demokratiis saertasoriso sazogadoeba, www.isfed.ge/main/777/geo/ 5. 2012 wlis 1 oqtombris saparlamento arcevnebis monitoringis saboloo angarisi, samartliani arcevnebisa da demokratiis saertasoriso sazogadoeba, www.isfed.ge/ main/330/geo/ 6. saolqo saarcevno komisiis wevrta SesarCevi konkursis monitoringis angarisi, samar- Tliani arcevnebisa da demokratiis saertasoriso sazogadoeba, www.isfed.ge/main/1034/ geo/ 7. saia saolqo saarcevno komisiebis SesarCev konkurss afasebs, saqartvelos axalgazrda iuristta asociacia, www.gyla.ge/ge/post/saia-saolqo-saarchevno-komisiebis-shesarchevkonkurss-afasebs 8. 2013 wlis 27 oqtombris saprezidento arcevnebi, winasaarcevno periodis monitoringis mexute Sualeduri angarisi, samartliani arcevnebisa da demokratiis saertasoriso sazogadoeba, www.isfed.ge/main/472/geo/ 9. `samartliani arcevnebis~ gancxadeba awaris umarlesi saarcevno komisiis mier Catarebuli konkursis Sedegebis Sesaxeb, www.isfed.ge/main/929/geo/ 49

Elene Nizharadze Program Coordinator International Society for Fair Elections and Democracy (ISFED) Reforms of Electoral System Staffing SUMMARY In the policy document on Reforms of Electoral System Staffing: Political Staffing vs Staffing through Professional Order, the problems related to staffing of the electoral administration are examined. The electoral administration has the leading role in a fair, transparent and democratic election process and for integration into the Euro-Atlantic space. In this respect, the electoral administration should enjoy the high confidence of society. Any issues with regards to the impartial and objective work of the electoral administration give rise to doubt of fair elections and arouse the mistrust of the population towards the organ, as well as to the elections themselves. Besides issues related to administration staffing, alternative ways for settlement of the presented problems are also discussed in the thesis. Three models of alternatives are presented, namely: staffing of administration with professional staff only, staffing of administration with political parties only, and an acting mixed model. Within the results of the analysis of beneficial and negative impacts of alternatives, it was ascertained that the best alternative for settlement of the problems and ensuring of confidence of society toward the electoral administration is the staffing of electoral administration with professional staff only. The analysis of cost effectiveness was also used during the process of discussion of the alternatives. Recommendations supporting the successful implementation of the selected alternative are also given in the above-mentioned document. 63