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Executive Summary

The constitution provides for an executive branch that reports to the prime minister, a unicameral Parliament, and a separate judiciary. The government is accountable to the Parliament. The president is the head of state and commander in chief. Under a controversial new constitution that came into force after the December 16 presidential inauguration following the October-November presidential elections, future presidents will not be elected by popular vote. Organization for Security and Cooperation in Europe (OSCE) observers described the first round of the presidential elections in October as competitive and professionally administered, although they raised concerns including the lack of a level playing field, voter intimidation, and fear of retribution. OSCE observers repeated these concerns after the second round in November and assessed that the candidates “were able to campaign in a free environment; however, one side enjoyed an undue advantage and the negative character of the campaign on both sides undermined the process.”

While civilian authorities maintained effective control of the Ministry of Defense, there were indications that at times they did not maintain effective control of domestic security forces.

Human rights issues included an allegation of an unjustified killing by security forces; arbitrary detentions and deprivation of life by Russian and de facto authorities of the country’s citizens along the administrative boundary lines (ABLs) with the Russian-occupied regions of Abkhazia and South Ossetia; unlawful interference with privacy; allegations of high level corruption of government officials; and crimes involving violence or threats targeting lesbian, gay, bisexual, transgender, and intersex (LGBTI) persons.

The government took steps to investigate some allegations of human rights abuses, but shortcomings remained. Such shortcomings included lack of accountability for the May 2017 reported abduction from Georgia and rendition to Azerbaijan of Azerbaijani journalist and activist Afgan Mukhtarli.

De facto authorities in the Russian-occupied Georgian regions of Abkhazia and South Ossetia remained outside central government control and were supported by several thousand Russian troops and border guards occupying the areas. A cease-fire remained in effect since 2008. Russian border guards restricted the movement of local populations. While there was little official information on the human rights and humanitarian situation in South Ossetia due to limited access, allegations of abuse persisted.

De facto authorities in the Russian-occupied regions of Abkhazia and South Ossetia restricted the rights, especially of ethnic Georgians, to vote or otherwise participate in the political process, own property, register businesses, and travel. Although de facto South Ossetian authorities refused to permit most ethnic Georgians driven out due to the 2008 conflict to return to South Ossetia, a special crossing arrangement existed for those from Akhalgori district. De facto authorities did not allow most international organizations regular access to South Ossetia to provide humanitarian assistance. Russian “borderization” of the ABLs continued, separating residents from their communities and livelihoods.

Section 2. Respect for Civil Liberties, Including:

The constitution and law provide for freedom of expression, including for the press, and citizens generally were free to exercise this right, although there were allegations the government at times did not adequately safeguard that freedom. During the year journalists, NGOs, and the international community raised concerns about the environment for media pluralism.

Press and Media Freedom: Independent media were very active and expressed a wide variety of views. On October 17, independent Iberia Television suspended broadcasting. The station’s owner alleged that the station’s financial problems were linked to government pressure. Iberia’s closure, and the 2017 merger of three television stations decreased media pluralism and increased the concentration of media outlets in favor of the ruling party. NGOs have criticized the close relationship between the heads of the Georgian Public Broadcaster (GPB) and Georgian National Communications Commission (GNCC) and the ruling party and media monitoring organizations report GPB’s editorial bias in favor of the ruling party.

On February 21, Parliament overrode President Margvelashvili’s January 15 veto of controversial amendments to the Law on Broadcasting that Parliament initially passed in December 2017. While the GNCC supported the amendments that had been initiated by GPB management, NGOs, private television stations, and opposition parties heavily criticized the amendments for enabling the GPB to receive additional revenue from commercial advertising and rendering the station’s restructuring process opaque.

Members of the GPB board elected by the ruling party frequently criticized NGOs, particularly in response to a July 2017 letter a group of 24 NGOs sent to high-level foreign officials that cited a “deteriorated media environment.” GPB published a series of articles deriding the civil sector for this critique, prompting the Media Advocacy Coalition to issue a statement in defense of the civil sector in February.

By law, media outlets are obligated to disclose information about their owners. While media ownership transparency allowed consumers to judge the objectivity of news, laws obliging broadcasters to disclose information about their financial sources were not fully enforced.

Some media outlets, watchdog groups, and NGOs continued to express concern regarding media pluralism and political influence in the media, especially against those critical of the government. Concerns persisted concerning government interference with and criticism of pro-opposition bias in some media outlets, in particular in the country’s most widely viewed television station, Rustavi 2. In March 2017, the ECHR suspended the Supreme Court’s decision to transfer Rustavi 2’s ownership to a former owner, Kibar Khalvashi. The ECHR’s review of the case remained pending at year’s end. Rustavi 2 struggled financially because of frozen assets and an overdue tax bill. In April a number of NGOs and rights groups reaffirmed their support for the ECHR’s interim measure on Rustavi 2 because it allowed the station to maintain its editorial independence.

Violence and Harassment: Crimes against media professionals, citizen reporters, media outlets were rare; however, during the year there were at least three reports of such violence. For example, in March members of the far-right group Georgian March damaged a car and injured a Rustavi 2 journalist during a protest against the station’s high-profile anchor, Giorgi Gabunia, who had referenced Jesus Christ in an on-the-air joke about Georgian Dream Party chairman Bidzina Ivanishvili’s tree collection. Georgian March filed a complaint to the station and demanded Gabunia’s apology for insulting their religious sentiment. NGOs and human rights advocates considered the protesters’ actions criminal offenses, such as coercion, illegal restriction of liberty, violence, damage of property, and unlawful interference with the journalist’s professional activities. GYLA called upon the relevant bodies to investigate the matter. The Ministry of Internal Affairs opened an investigation and arrested several individuals for hooliganism, all of whom were subsequently released on bail. The pretrial hearings continued as of November 7.

Nongovernmental Impact: Media observers, NGO representatives, and opposition politicians alleged that Georgian Dream party chair and former Prime Minister Bidzina Ivanishvili exerted a powerful influence over the government and judiciary, including in court decisions against Rustavi 2.

While there was a relatively greater diversity of media in Abkhazia than in South Ossetia, media in both occupied regions remained restricted by de facto authorities and Russian occupying forces.


The government did not restrict or disrupt access to the internet or censor online content, but concerns remained about unauthorized surveillance. Surveillance laws introduced in 2017 attracted criticism for allowing excessive access to user data (see section 1.f.).

According to International Telecommunication Union statistics, approximately two-thirds of the population used the internet. High prices for services and inadequate infrastructure limited access, particularly for individuals in rural areas or with low incomes.

Insufficient information was available about internet freedom in Abkhazia and South Ossetia.


NGOs continued to raise concern that the government improperly pressured schools that Turkish authorities alleged to be linked to the Gulen movement, which they accused of responsibility for the 2016 coup attempt. After the 2017 closure of two secondary schools and arrest of their general director, Mustafa Cabuk, on a Turkish government extradition request (Cabuk was released in February, see section 2.d.), officials began to impose administrative pressure on the International Black Sea University, a leading private institution, citing tax liens on the university’s properties as a reason to prevent it from taking on new students.

The constitution and law provide for the freedoms of peaceful assembly and association; government respect for those rights was uneven.


The constitution and law generally provide for freedom of assembly. Human rights organizations expressed concern, however, about provisions in the law, including the requirement that political parties and other organizations give five days’ notice to local authorities to assemble in a public area, thereby precluding spontaneous demonstrations. NGOs reported that police sometimes restricted freedom of assembly. For example, on December 17, 14 NGOs accused the authorities of restricting opposition access to the site of a planned Inauguration Day demonstration on December 16. The government responded that it had provided an area for demonstrations, but that protestors had refused to use it. As of mid-December, two supporters of Georgian Dream and one opposition activist were in detention after inauguration day incidents. Two Georgian Dream activists were arrested after allegedly assaulting an opposition activist in Velistsikhe, and opposition leader Davit Kirkitadze was arrested after he reportedly assaulted a police officer who was blocking the highway with a bus. Kirkitadze and his supporters claimed his arrest was politically motivated. NGOs also stated police abused the administrative offences code to detain participants of peaceful assemblies based on articles 166 (petty hooliganism), 173 (non-compliance with a lawful order of a law enforcement officer), and 150 (defacing the appearance of a self-governing unit).

There were several protests in May, including those against raids on popular nightclubs and in support of the International Day Against Homophobia, Transphobia, and Biphobia (IDAHOT). In May LGBTI organizations were unable to hold a sanctioned IDAHOT rally due to safety concerns following large rallies attended in part by far right groups that threatened violence against LGBTI supporters. Several LGBTI activists still met in front of the State Chancellery under heavy police presence. The PDO reported violence against LGBTI individuals, whether in the family or in public spaces, was a serious problem, and that the government has been unable to respond to this challenge.


There were reports that some government representatives and supporters of the ruling party pressured political opposition figures and supporters and state employees (see Section 3).

c. Freedom of Religion

See the Department of State’s International Religious Freedom Report at

d. Freedom of Movement, Internally Displaced Persons, Protection of Refugees, and Stateless Persons

The law provides for freedom of internal movement, foreign travel, emigration, and repatriation of citizens, but de facto authorities and Russian occupying forces limited this freedom in Abkhazia and South Ossetia.

The government cooperated with the UN High Commission for Refugees (UNHCR) and other humanitarian organizations in providing protection and assistance to IDPs, refugees, returning refugees, asylum seekers, stateless persons, and most other persons of concern. The Public Defender’s Office and NGOs, however, alleged that authorities made politically motivated decisions on asylum and other requests affecting selected Turkish and Azerbaijani citizens.

In-country Movement: There were substantial impediments to freedom of internal movement due to a lack of access to the breakaway regions of Abkhazia and South Ossetia. The majority of the approximately 300,000 IDPs from Abkhazia and South Ossetia wished to return to their areas of origin but lacked adequate security provisions and political, human, economic, and movement rights absent a political resolution to the conflicts.

Foreigners were restricted from moving in and out of South Ossetia but could access Abkhazia with approval from the de facto authorities. There were reports that late in the year citizens of Commonwealth of Independent States countries were prohibited from entering Abkhazia except from Russia, which violated Georgian law. This placed additional restrictions on international humanitarian access to Abkhazia. Crossing permits introduced by de facto South Ossetian authorities were the only document that allowed movement across the South Ossetia ABL to or from Tbilisi-administered territory (TAT).

Some residents of Abkhazia who used their Georgian passports had to obtain permission from de facto security services to cross the Abkhazia ABL to or from TAT. Georgian passport holders could cross a checkpoint if they possessed invitation letters cleared by the de facto state security services allowing them to enter Abkhazia. The latter did not consistently provide permission to cross and limited movement to specific areas. In August de facto authorities suddenly declared older Soviet-era passports, used by thousands of ethnic Georgians living in Abkhazia, to be no longer valid for crossing, threatening the livelihood of many residents. De facto authorities then blocked some ethnic Georgians who had used Soviet-era passports to cross into TAT from returning to Abkhazia. De facto authorities claimed that residents without valid crossing documents would be allowed to apply for residence permits, which would enable them to cross, but it remained unclear how these new regulations would be implemented.

Georgian law prohibits entry into and exit from the breakaway regions through the territory of neighboring states (i.e., Russia).

Russian and Abkhaz de facto authorities limited international organizations’ ability to operate in Abkhazia. Russian and South Ossetian de facto authorities limited international organizations, including humanitarian organizations, access to South Ossetia; however, the Co-Chairs of the Geneva International Discussions–representing the United Nations, the OSCE, and the EU Special Representative for the South Caucasus and the Crisis in Georgia–visited South Ossetia quarterly prior to each round of the discussions, accompanied by UNHCR. The ICRC office in Tskhinvali was the only international organization representation in South Ossetia.

De facto authorities and Russian forces in the Russian-occupied territories also restricted the movement of the local population across the ABL, although they showed flexibility for travel for medical care, pension services, religious services, and education. Villagers who approached the line or crossings risked detention by Russian Federation “border guards.” Russian border guards along the ABL with Abkhazia typically enforced the boundary-crossing rules imposed by de facto authorities through detentions and fines. Along the South Ossetia ABL, Russian border guards frequently transferred individuals to de facto authorities. The SSSG reported that detentions by de facto authorities typically lasted two to three days until the detainee paid “fines” set by the de facto “court,” although some sentences for “violations of the state border” carried considerably longer terms.

The European Union Monitoring Mission was aware of 14 individuals detained along the ABL with Abkhazia and 92 detained along the line with South Ossetia as of November. There were credible reports based on local sources that, on several occasions, local South Ossetian or Russian “border guards” crossed into government-controlled territory to detain an individual. There were also reports of arbitrary arrests of ethnic Georgians by de facto authorities, particularly in the Tskhinvali and Gali regions of South Ossetia and Abkhazia, respectively. Most often, the arrested individuals were accused of violating the “state border.” According to EUMM, many detainees were obliged to sign documents in Russian that they did not understand.

De facto authorities continued to expand fencing and other physical barriers along the ABL between the government-administered area and South Ossetia. This expansion of the Russian “borderization” policy further restricted movement, creating physical barriers and obstructing access to agricultural land, water supplies, and cemeteries. In November, Russian occupation forces in South Ossetia erected fencing along a one-kilometer line at the village of Atotsi, Kareli Municipality. Local residents reported they had already tilled and sowed the land that was then taken away, and they would not be able to reap the harvest.

In March 2017 Abkhaz de facto authorities closed two crossing points across the ABL, leaving crossing points open only at the Enguri Bridge and Saberio-Pakhulani. As access to government-administered territory became more restricted and visits to family and friends living across the ABL much more difficult to arrange, the closure of crossing points further impoverished and isolated the population in lower Gali and contributed to a growing sense of isolation. The closure also prevented children from attending classes in their native Georgian language across the ABL.


As part of a broader consolidation plan, the government abolished the Ministry for Refugees, Accommodation, and Internally Displaced Persons in August, dividing the ministry’s responsibilities among the Ministries of Interior, Labor, Health, and Social Affairs, as well as the State Ministry for Reconciliation and Civic Equality. According to the government, as of August, there were approximately 280,000 IDPs from the 1992-93 and 2008 conflicts. UNHCR estimated 235,176 persons were in an “IDP-like” situation, some 50,000 of whom were in need of protection and humanitarian assistance. This number included individuals who have returned to Abkhazia and South Ossetia, as well as those displaced in the 2008 conflict who subsequently were relocated, or have obtained housing or cash compensation.

Most persons displaced in 2008 received formal IDP status in accordance with national legislation, although some individuals who were not displaced by the 2008 conflict and lived close to the ABL were officially described as being in an “IDP-like situation.” The government provided monthly allowances to persons recognized as IDPs, promoted their socioeconomic integration, and sought to create conditions for their return in safety and dignity.

Despite their 1994 agreement with Georgia, Russia, and UNHCR that called for the safe, secure, and voluntary return of IDPs who fled during the 1992-93 war, Abkhaz de facto authorities continued to prevent the return of those displaced by the war. Between 45,000 and 60,000 IDPs have returned since that time to the Gali, Ochamchire, and Tkvarcheli regions of lower Abkhazia, but Abkhaz de facto authorities refused to allow the return of IDPs to other regions. De facto authorities prevented IDPs living elsewhere in the country from reclaiming homes in Abkhazia, based on a “law” that expropriated all “abandoned property” from the 1992-93 war. IDPs who returned were allowed to sell but were barred from buying property.

Ethnic Georgians living in Abkhazia lacked fundamental rights and confronted onerous registration requirements that threatened their continued status. De facto authorities continued to pressure ethnic Georgians to acquire a “foreign residency permit,” which allows the holder to cross the ABL and remain in Abkhazia for a period of five years. An applicant must, however, accept the status of an alien (i.e., a Georgian living as a foreigner in Abkhazia), may not purchase property, may not transfer residency rights of property to children born in de facto controlled territory, may not vote, and must accept a lack of other basic rights. As of December 31, de facto authorities continued to allow ethnic Georgians to cross the ABL with “Form Number Nine,” an administrative pass that de facto authorities had previously threatened to discontinue.


Access to Asylum: A 2017 law remained in effect guaranteeing access to international protection, including access to asylum or refugee status. NGOs, however, alleged that executive and judicial authorities made politically motivated decisions in response to asylum requests by some Turkish citizens and a number of Azerbaijani citizens.

The law distinguishes among three types of protection: a) refugee status (as per the 1951 Refugee Convention), b) protected humanitarian status (complementary protection), and c) temporary protection. In 2017, the government’s acceptance rate for granting refugee or humanitarian status was 18 percent. During the first six months of the year, the overall acceptance rate was 6.8 percent (25 were recognized as eligible for refugee or humanitarian status while 343 were rejected).

In February, authorities released on bail a Turkish citizen, Mustafa Emre Cabuk. The release followed a statement by the Parliamentary Assembly of the Council of Europe’s co-rapporteurs for Georgia questioning the use of pretrial detention for asylum seekers and urging that asylum requests “should be based only on humanitarian and human rights law, including the European Convention on Human Rights, whose requirements should be fully applied.” In July 2017, the government had denied asylum Cabuk and his family after it detained him following a Turkish government extradition request, which accused him of being a member of a terrorist organization.

The Public Defender’s Office and local and international NGOs continued to raise concerns about the government’s refusal to grant asylum, other protected status, or residency permits to a number of Azerbaijani journalists and activists. The NGOs claimed the individuals were politically persecuted in Azerbaijan and accused the Georgian government of rejecting the asylum and residence permit requests despite continued pressure against activists by the Azerbaijani government. The NGOs reported the government based its refusal of asylum and residence permits on national security interests without giving clear reasons or citing relevant legislation. In 2017 three NGOs reported that Azerbaijani dissidents no longer viewed the country as a safe haven.

The Public Defender’s Office reported it found several unreasonable instances of refusal to grant citizenship, asylum/refugee status, and residency permits to foreigners on national security grounds after reviewing the government’s confidential considerations in some cases.

Employment: Asylum seekers (from the start of the asylum procedure) and persons under international protection have legal access to the labor market. Foreigners, including persons under international protection, can register at the “Worknet” state program for vocational training and skills development.

Access to Basic Services: The government provided limited assistance to persons with protected status. In 2017 the government opened an integration center to provide structured integration programs for such persons. The country’s reception center had adequate services for asylum seekers and had capacity for approximately 150 persons.

The law enables refugees and asylum seekers to receive a temporary residence permit during the entirety of their asylum procedure as well as documentation necessary to open a bank account and register a business or property. Refugees receive a renewable temporary residence permit for three years, while protected humanitarian status holders receive a permit for one year, renewable upon a positive assessment of the need for continued protection. Access to education remained a problem due to the language barrier, notwithstanding the government’s provision of Georgian language classes.

Durable Solutions: The government offered a path to naturalization for refugees residing on its territory. The naturalization process began in 2009, when there were 1,200 Chechen refugees in Pankisi. As of November, 58 percent (699) applied for citizenship. Out of these applications, the government naturalized 78 percent (545) and rejected 22 percent (154). Approximately 17.5 percent (211) of the initial refugee population remained in Pankisi and had yet to be naturalized, including several whose applications authorities rejected because they failed to pass the required language and history tests. Authorities purportedly denied others naturalization based on national security concerns.

Temporary Protection: The law provided for avenues to temporary protection to individuals who may not qualify as refugees. The law provided temporary residence permits, but these permits are not a form of international protection per se in the meaning of refugee law. The Ministry of Internal Affairs may grant these temporary permits to individuals who meet the criteria for refugee status or humanitarian protection, but who were rejected on national security grounds. From January to June, 433 persons applied for asylum and authorities granted humanitarian status to three percent (13). In the first six months of 2017, 379 individuals applied for asylum and authorities granted humanitarian status to six percent (22).


According to government statistics, as of October, authorities granted 22 percent of the year’s applications for stateless status (eight out of 32).

The law defines a stateless person in line with the 1954 UN Convention relating to the Status of Stateless Persons and lists specific rights and responsibilities of stateless persons. The law provides that an adult can be granted citizenship if he or she has permanently resided on the country’s territory during the previous five years; knows the state language; is familiar with the country’s history and laws and able to pass the relevant tests; and has a job or owns real estate on the country’s territory, conducts business, or owns shares in a Georgian company or industry. In exceptional cases, the president may grant citizenship to individuals who do not satisfy these requirements.

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