International Society for Fair Elections and Democracy

Performance Report of MPs Elected through Majoritarian Voting

System in the 8th Parliament of Georgia

Tbilisi, 2016

Introduction
International Society for Fair Elections and Democracy (ISFED) presents
performance report of MPs elected through majoritarian voting system in the 8th
Parliament of Georgia, covering the reporting period from November 2012 to
February 2016. It is important to study performance of majoritarian MPs in view of
their special mandate to communicate directly with constituents in their respective
majoritarian districts, to identify, generalize and take actions in response to their
needs and concerns. Work of majoritarian MPs in their constituencies is supported by
the bureaus, which provide assistance for effective performance and communication
with local population. Majoritarian MPs have the right to introduce bills and make
speeches at plenary sittings, which should be the most effective way to solve local
problems at the legislative level.
This report provides an account of monitoring parliamentary performance of
majoritarian MPs, including number of their legislative initiatives, as well as
quantitative analysis of their absences from plenary sittings without a valid reason and
speeches made at plenary sittings. The report also provides information about actions
of majoritarian MPs taken in response to requests/appeals of citizens and frequency of
their meetings with constituents, functions of the bureaus, their budgets and staffing
policy.
To analyze performance of majoritarian MPs in the 8th parliament of Georgia elected
in 2012, ISFED requested access to the following public information from the
majoritarian MPs concerning their performance:

Frequency of meetings with constituents;

Actions taken in response to written requests of constituents;
Number of written requests submitted to the Bureaus;
Number of employees at each Bureau;
Annual salary budgets of each Bureau.

In addition, ISFED requested access to the following information from the Office of
the Parliament of Georgia about performance of the majoritarian MPs:

Number of bills were introduced by majoritarian MPs and names of

majoritarian MPs that introduced each bill;
Names of majoritarian MPs that exercised their right to make a speech during
a plenary sitting and frequency of these speeches.

Out of 73 MPs elected through the majoritarian voting system, only 27 provided
the information requested by ISFED.
The Office of the Parliament of Georgia provided timely and detailed answers to
all questions of ISFED.

Legal Basis of Majoritarian MPs Mandate

There are 150 MPs in the Parliament of Georgia, including 73 elected through the
majoritarian voting system and 77 elected through the proportional voting system.
By virtue of the Georgian Constitution, a member of the Georgian Parliament is a
representative of the whole Georgia. S/he enjoys a free mandate and his/her recall is
prohibited. 1
Although all members of the Georgian Parliament represent the whole country,
majoritarian MPs have a different relationship with voters under the Georgian
legislation that recognizes the unique mandate of majoritarian MPs and allocates
additional funding from the budget of the Georgian Parliament in view of the specific
nature of their work. 2
Under Article 19 of the Rules of Procedure of the Parliament of Georgia, the bureau
of majoritarian MP is set up in each majoritarian district with the main functions of
organizing the work with constituents and facilitating participation of majoritarian
MP in the work of the executive branch of the government and relevant local selfgovernment bodies, as well as in the local decision-making process.
Bureaus work is subject to the Regulations introduced by the Procedural Issues
Committee and adopted by the Bureau of the Parliament of Georgia. Expenditures of
bureaus of majoritarian MPs are covered by the budget of the Georgian Parliament.

Constitution of Georgia, Article 53, para. 1

The Law of Georgia on the Status of A Member of the Georgian Parliament, Articles 31 and 32;
also, the Rules of Procedure of the Parliament of Georgia, Article 19

Key findings

ISFED found that often there is no contact between majoritarian MPs and their
respective constituents due to the lack of action and initiative by majoritarian
MPs to communicate with voters;

Georgian legislation regulates obligations of majoritarian MPs before

constituents. Most important obligations include meeting with constituents and
addressing their problems; however, in reality majoritarian MPs often fail to
properly fulfill their obligations;

There is a special page about performance of majoritarian MPs on the official

website of the Parliament of Georgia. 3 However, it does not provide locations
of bureaus of majoritarian MPs, their office hours (date and time), number of
bills initiated by majoritarian MPs, information about majoritarian districts
and other important details. The above information is not available or relevant
sections are under construction, which means that Georgian majoritarian MPs
fail to provide information proactively to constituents about their
parliamentary work and performance;

Because citizens address majoritarian MPs mostly about issues that fall under
the purview of other state authorities, bureaus refer their requests to relevant
bodies for consideration. It is safe to conclude that majoritarian MPs are often
unable to provide solutions to local problems, considering that voters have
wrong expectations and information about powers and competencies of
majoritarian MPs;

During the reporting period, out of 73 majoritarian MPs 37 did not exercise
their right to introduce a bill; remaining 36 MPs that exercised their right to
introduce a bill and initiated a total of 331 legal drafts;

From November 2012 through the fall session in 2015, number of absences
without a valid reason was 378. Out of 73 MPs, only 11 never missed a
parliamentary sitting, while 8 MPs missed one sitting each and 54 MPs missed
two or more sittings;

Out of all majoritarian MPs, 7 have not exercised their right to make a speech
during a plenary sitting in the 8th Parliament; neither did they initiate a single
bill;

Number of employees varies across different bureaus and it does not depend
on number of constituents in a majoritarian district concerned or on any other
characteristics of the district. There is no uniform practice or a legal standard
defining the number of employees in each bureau.

There are no uniform standards about salary budgets in bureaus. Rather, salary
budgets and remunerations vary across different bureaus.

http://parliament.ge/ge/parlamentarebi/majoritarebi-22

I.

Exercise of the Right of Legislative Initiative

Law making is an important part of the work of Georgian MPs, including majoritarian
MPs. In addition, the right of legislative initiative is a constitutional right of a member
of the Georgian Parliament. Frequency of legislative initiatives introduced by
majoritarian MPs is rather important and interesting, considering that they have
additional funding allocated from the parliamentary budget for communicating with
constituents. Therefore, it is safe to conclude that majoritarian MPs are better
positioned to be well-informed about local needs and have the ability to address local
challenges by proposing new laws. Within the monitoring, ISFED examined statistics
of legislative initiatives introduced by majoritarian MPs, which included bills
introduced individually and collectively in the parliament.
Based on the information provided by the Office of the Parliament, during the
reporting period a total of 331 bills were proposed by majoritarian MPs in the eight
Parliament of Georgia. Out of 73 majoritarian MPs only 36 participated in initiation
of these bills. 6 bills were proposed collectively, with participation of 46 to 80 MPs, 4
while 37 majoritarian MPs never exercised their right of legislative initiative.
Table 1 below provides the list of 36 majoritarian members of the parliament that
exercised their right of legislative initiative, along with the number of bills that they
proposed during the reporting period.
Table 1
#

Name of the majoritarian MP

1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
11.
12.
13.
14.
15.
16.
17.
18.

Davit Onoprishvili
Vakhtang Khmaladze
Tamar Kordzaia
Giorgi Kakhiani
Nodar Ebanoidze
Shalva Shavgulidze
Gedevan Popkhadze
Zurab Abashidze
Erekle Tripolski
Zakaria Kutsnashvili
Eka Beselia
Zviad Dzidziguri
Zviad Kvachantiradze
Alexandre Kantaria
Mirian Tsiklauri
Akaki Bobokhidze
Manana Kobakhidze
Ioseb Jachvliani

Number
of
bills
introduced
41
33
22
20
18
17
16
16
14
14
13
6
6
5
4
4
4
4

Based on the information provided by the Parliament of Georgia, out of 311 bills 6 were introduced
collectively by 40-48 MPs but names of these MPs are not provided. In addition, the Parliament
provided the list of 36 majoritarian MPs that exercised their right of legislative initiative.

19.
20.
21.
22.
23.
24.
25.
26.
27.
28.
29.
30.
31.
32.
33.
34.
35.
36.

Murman Dumbadze
Paata Kiknavelidze
Zaza Papuashvili
Eliso Chapidze
Tina Khidasheli
Davit Usupashvili
Dimitri Khundadze
Tamaz Japaridze
Giorgi Gozalishvili
Viktor Dolidze
Malkhaz Vakhtangashvili
Paata Lezhava
Kakhaber Okriashvili
Teimuraz Chkuaseli
Zurab Zviadauri
Anzor Bolkvadze
Gela Samkharauli
Malkhaz Tsereteli

3
3
3
3
3
2
2
2
2
2
2
2
2
2
1
1
1
1

II.

Exercise of the Right to Make A Speech during Plenary

Sittings of the Parliament

MPs elected through the majoritarian voting system have the right to use the
parliamentary platform, which is an important tool for helping constituents make their
voice heard in the supreme legislative body. However, nearly 10% of majoritarian
MPs never made a speech during a plenary sitting, 30% gave a speech no more than
10 times, and 17% used the parliamentary platform at least 100 times or more.
Out of 73 majoritarian MPs, 7 never exercised their right to make a speech during a
plenary sitting in 2012-2016. Table 2 below provides the list of their names:
Table 2
Name, surname
Zaza Kedelashvili
Giorgi Peikrishvili
Revaz Shavlokhashvili
Enzel Makoyan
Gogi Liparteliani
Levan Kardava
Rostom Khalvashi

District
Dedoplistskaro
Gardabani
Tsalka
Ninotsminda
Lentekhi
Tsalenjikha
Khelvachauri

Interestingly, from October 2012 to February 2016, the above MPs never exercised
their right to legislative initiative either.
The following four majoritarian MPs made a speech at a plenary sitting of the
parliament once during the reporting period:
Table 3
Name, surname
Zurab Zviadauri
Kakha Butskhrikidze
Roland Akhalaia
Teimuraz Chkhaidze

District
Akhmeta
Terjola
Zugdidi
Lanckhuti

The following 6 majoritarian MPs exercised their right to make a speech 2 times
during the reporting period:
Table 4
Name, surname
Marika Verulashvili
Davit Bezhuashvili
Viktor Japaridze
Davit Dartsmelidze
Guram Misabishvili
Soso Danelia 5

District
Kvareli
Tetritskaro
Mestia
Abasha
Senaki
Martvili

Soso Danelia was elected as majoritarian MP in the October 2013 by-elections

The right to make a speech was most often exercised by the following majoritarian
MPs:
Table 5
Name, Surname
Eka Beselia
Vakhtang Khmaladze
Zakaria Kutsnashvili
Alexandre Kantaria
Davit Onoprishvili
Shalva Shavgulidze

Number of speeches
made
436
392
361
257
226
215

District
Poti
Didube
Tianeti
Isani
Kaspi
Vake

The following 6 MPs exercised their right to make a speech at least 100 times but no
more than 200 times:
Table 6
Name, surname
Giorgi Kakhiani
Tamar Kordzaia
Gedevan Popkhadze
Dimitri Khundadze
Goderdzi Bukia
Tariel Londaridze

Number of speeches
made
139
138
131
125
108
100

District
Samtredia
Nadzaladevi
Borjomi
Mtskheta
Khobi
Aspindza

III.

Absences from Plenary Sittings Without A Valid

Reason

A member of the Georgian Parliament has an obligation to attend all plenary sittings
of the Parliament of Georgia. According to the Rules of Procedures of the Parliament,
an MP is the principal subject of the Parliamentary activities, whose work is related to
participation in the decision-making process in parliamentary committees,
commissions and plenary sittings. All MPs are obligated to attend plenary sittings of
the parliament and participate in debates and decision-making. 6
According to the Rules of Procedures of the Parliament of Georgia, a parliamentary
session is planned in two-week cycles. The first week, with the exception of the first
week of a newly elected parliament, is meant for plenary sittings and committee work,
while the second week focuses on meetings with voters and committee work. 7
Plenary sittings are usually held two times a week on Wednesdays and Fridays of
the week of plenary sittings. The registration of MPs is held before the opening of the
morning sitting and before voting.
Following registration of MPs before opening of each morning sitting and before
voting, the Usher records attendance of MPs. Majority and minority leaders and
faction chairpersons, or in an event of their absence their deputies provide the Usher
with written information about reasons why the majority/minority/faction members
are absent. MPs that are not affiliated with the majority/minority/faction should notify
the Usher about the reason of their absence before the sitting begins. In an event of
their failure to do so, reason of absence will be deemed invalid.
If a member of the parliament fails to register during the morning session or before
the voting, he or she will be deemed absent. 8
Valid reasons of absence from plenary and committee sittings include: medical or
family issues and an official travel. Chair (or deputy chair) of the relevant committee
should be informed about the reason of absence in an event of absence from the
committee sitting, or a faction chair (deputy chair) in an event of absence from the
plenary sitting.
Information about absences from the plenary sitting of the parliament without a valid
reason is published on the website of the Parliament of Georgia. Based on the
information available on the website, from November 2012 to the fall session in 2015
majoritarian MPs in the 8th Parliament missed a total of 378 sittings without a valid
reason.
Out of 73 majoritarian MPs, 13 have no invalid absences, 8 have 1 invalid absence
each and 54 have two or more invalid absences each. 9
Majoritarian MP of Kvareli Marika Verulashvili had the most number of absences
19, followed by Terjola Majoritarian MP Kakha Butskhrikidze - 18 absences,
Ckhorotsku Majoritarian MP Levan Kardava 15 absences, and Tetritskaro
Majoritarian MP Davit Bezhuashvili 14 absences.
6

Rules of Procedures of the Parliament. Article 14 (2c).

Rules of Procedures of the Parliament. Article 126.
8
Rules of Procedures of the Parliament. Article 133 (6)
9
See table 7
7

Information about absences from the plenary sittings of parliament without a valid
reason is published on the website of the Parliament of Georgia. According to the
applicable procedure 10, at the end of each plenary session the Office of the Usher
prepares the list of MPs that were absent from the session without a valid reason and
provides it to the Committee for Procedural Issues and Rules. The latter publishes the
list on the website of the Parliament of Georgia. 11
Figure 7. Invalid Absences of Majoritarian MPs from plenary sittings of the
Parliament
N
1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
11.
12.
13.
14.
15.
16.
17.
18.
19.
20.
21.
22.
23.
24.
25.
26.
27.
28.
29.
30.
31.
32.
33.
34.
35.
36.
37.
10
11

Name, Surname
Verulashvili Marika
Butskhrikidze Kakha
Kardava Levan
Bezhuashvili Davit
Akhalaia Roland
Kvachantiradze Zviad
Lezhava Paata
Chavchanidze Davit
Samkharauli Gela
Khabelov Leri
Japaridze Viktor
Sanikidze Gubaz
Dumbadze Murman
Petrosyan Samvel
Ghviniashvili Giorgi
Bolkvadze Anzor
Nakopia Koba
Chilingarashvili Zurab
Dolidze Viktor
Chkuaseli Teimuraz
Gelashvili Valeri
Enukidze Gocha
Dzidziguri Zviad
Shavlokhashvili Revaz
Japaridze Tamaz
Bobokhidze Akaki
Zviadauri Zurab
Okriashvili Kakha
Popkhadze Gedevani
Kedelashvili Zaza
Gelashvili Gela
Makoyan Enzel
Peikrishvili Giorgi
Kutsnashvili Zakaria
Shavgulidze Shalva
Abashidze Zurab
Bukia Goderdzi

Number of absences
19
18
15
14
13
13
12
12
11
11
11
11
10
9
9
8
8
8
8
7
7
7
7
7
6
6
6
6
6
5
5
5
5
5
5
4
4

The Rules of Procedure of the Parliament of Georgia, Article 286 (14).

See the information at: http://bit.ly/1ssqyoL

38.
39.
40.
41.
42.
43.
44.
45.
46.
47.
48.
49.
50.
51.
52.
53.
54.
55.
56.
57.
58.
59.
60.
61.
62.
63.
64.
65.
66.
67.
68.
69.
70.
71.
72.
73.

Liparteliani Gogi
Shervashidze Iasha
Chapidze Eliso
Ckhaidze Teimuraz
Khabuliani Sergo
Onoprishvili Davit
Dartsmelidze Davit
Kobakhidze Manana
Jachvliani Soso
Chitashvili Vazha
Tripolski Erekle
Kiknavelidze Paata
Megrelidze Omar
Misabishvili Guram
Lemonjava Vakhtang
Beselia Eka
Suleymanov Azer
Tsiklauri Mirian
Khabareli Shota
Khundadze Dimitry
Kordzaia Tamar
Kavtaradze Giorgi
Kantaria Alexander
Gozalishvili Giorgi
Ebanoidze Nodar
Vakhtangishvili Malkhaz
Londaridze Tariel
Papuashvili Zaza
Usupashvili Davit
Tsereteli Malkhaz
Khalvashi Rostom
Khalvashi Pati
Khmaladze Vakhtang
Khidasheli Tamar
Kakhiani Giorgi
Danelia Soso

4
4
4
4
4
3
3
3
3
3
3
3
2
2
2
1
1
1
1
1
1
1
1
0
0
0
0
0
0
0
0
0
0
0
0
0

Based on Article 286 of the Rules of Procedure of the Parliament of Georgia, invalid
absence from a plenary sitting is punishable by a sanction in particular, more than
one absence without a valid reason during one calendar month leads to a 10% salary
deduction but no more than a total of 50% salary deduction. 12
However, deduction from MPs salary will be made if the MP is absent from a regular
plenary sitting, while absence from a special session or a special sitting will not lead
to the salary deduction. 13
Absence from a plenary sitting without a valid reason is recorded in a report and
announced during the last plenary sitting of a calendar month by the sitting
12
13

The Rules of Procedure of the Parliament of Georgia, Article 286 (9; 11).
The Rules of Procedure of the Parliament of Georgia, Article 286 (12).

chairperson. Based on these recordings, the Ushers Office prepares the list of
absences and sends it to the Financial Support Department of the Office of the
Parliament for imposition of applicable sanctions.
Although many majoritarian MPs were frequently absent from plenary sittings,
deductions were made only from salaries of 5 majoritarian MPs. Total amounts of
deductions from salaries of majoritarian MPs is as follows:

Teimuraz Chkuaseli - GEL 400

Roland Akhalaia GEL 200
Marika Verulashvili GEL 758
Koba Nakopia - GEL 758
Viktor Japaridze GEL 390

Although many MPs had absences without a valid reason, sanctions were imposed
only on five MPs, which is why the practice of imposing financial sanctions only on
MPs that missed plenary sittings during the period of a regular parliamentary session
is unfair.
In light of the foregoing, it is safe to conclude that applicable norms of the Rules of
Procedures of the Parliament fail to ensure use of adequate sanctions against invalid
absences of MPs from plenary sittings of the parliament. In addition, clearly majority
of MPs got away without sanction for missing special sessions or special plenary
sittings of the parliament.

IV.

Funding for Majoritarian MP Bureaus

The parliamentary budget allocates additional resources to support work of

majoritarian MPs.
Legal basis of the work of majoritarian MPs includes: Article 19 of the Rules of
Procedure of the Parliament of Georgia, Resolution of the Parliament of Georgia
no.2714/IS, dated March 2, 2006, on Measures for Improving Relationship of
Members of the Georgian Parliament with Voters and the Regulations for
Determining the Functions, the Rules of Organization and Activity of the Bureau of
MP Elected through Majoritarian Voting System, and [for determining] Rules for
Spending Funds Allocated from the Budget of the Parliament for the Bureau
(hereinafter, the Resolution), adopted by the Decision no.29/3 of the Bureau of the
Parliament of Georgia on 7 February 2013.
Under Article 19 of the Rules of Procedure of the Parliament of Georgia, for
organizing the work with constituents and facilitating participation of majoritarian
MPs in the work of the executive branch of the government and relevant local selfgovernment bodies, as well as in local decision-making process, a bureau of
majoritarian MP is opened locally. Functions, the rules of organization and activity of
the bureau are determined by the Regulations introduced by the Parliamentary
Committee of Procedural Issues and Rules and approved by the Bureau of the
Parliament.
Expenses related to the work of a bureau of majoritarian MP will be covered from the
Budget of the Parliament. 14
Under Article 3 of the Regulations, a lump-sum payment of GEL 5,000 is made from
the Budget of the Parliament for material and technical support of each bureau. The
funding is used to purchase material and technical supplies for the bureaus. In
addition, each bureau receives GEL 5,000 for purchasing fixed assets that are
required for functioning of the bureau, for paying employee salaries and renting an
office space, while the remaining balance is used to cover communication, fuel and
transportation expenses as well as minor repair works at the bureau office and to
support functioning of the bureau. The payment is made by the Office of the
Parliament of Georgia, based on a request made by the majoritarian MP.
According to the Regulations, majoritarian MP is responsible for managing property
and finances allocated to the bureau. The majoritarian MP must submit a statement of
expenditures to the Office of the Parliament every three months.
A total of GEL 12 065 777 was spent to support work of the bureaus of majoritarian
MPs in 2013-14-15.
Amounts of funding allocated to the bureaus by years is as follows: in 2013, a total of
GEL 4 085 496 was allocated for the bureaus of 66 majoritarian MPs, total amount
spent was GEL 3 677 212, unspent balance was 408 284 GEL. 15

14

A majoritarian MP should report to the Parliamentary Committee of Procedural Issues and Rules on
an annual basis about expenses made by the bureau.
15
In 2013, MPs of Terjola, Zestaponi, Vani, Khoni, Tskaltubo, Ninotsminda and Gardabani did not
receive the funding.

Funding for the bureaus

Balance

2015
2014
2013

16

561543

595515

Expenditures

4189198
4199367

408284
3677212

Receipts

4750741
4794883
4085496

In 2014, 73 majoritarian MPs received the funding

In 2014, a total of GEL 4 794

883 was allocated for the
bureaus 16 , total amount spent
was GEL 4 199 367, remaining
balance was GEL 595 515.
In 2015, bureaus of 73
majoritarian MPs received GEL
4 750 741 in funding, total
amount spent was GEL 4 189
198, remaining balance was
GEL 561.543.

V.

Rules for Selection of Bureau Employees and their

Compensation

Work of employees of a bureau of majoritarian MP is regulated by the Regulations

for Determining the Functions, the Rules of Organization and Activity of the Bureau
of MP Elected through Majoritarian Voting System, and [for determining] Rules for
Spending Funds Allocated from the Budget of the Parliament for the Bureau adopted
by the Decision no.29/3 of the Bureau of the Parliament of Georgia. According to the
Regulations, bureau employees ensure organization of the bureaus work and support
its activities. Bureau employees are nominated by the majoritarian MP concerned and
appointed by the Chief of the Office of the Parliament for length of the MPs term.
Each bureau employees at least 3 people. Most number of employees was found in the
bureau of Akhaltsikhe Majoritarian MP 12 people.
There is no unified standard of salary budget in bureaus but rather, salary budgets and
remuneration differ across bureaus. For instance, annual salary budget for 12
employees of the bureau of Akhaltsikhe Majoritarian MP is GEL 46 764, while 3
employees in the bureau of Chokhatauri majoritarian MP have the annual salary
budget of GEL 41 767, 63, i.e. average monthly salary in the bureau of Akhaltsikhe
Majoritarian MP is GEL 325 per employee, while employees of the bureau of
Chokhatauri majoritarian MP receive the average monthly salary of GEL 1160.
The bureau of Kutaisi Majoritarian MP employees 4 people; their annual salary
budget is GEL 42,000. Head of the bureau receives a remuneration of GEL 1400 per
month while remaining employees earn GEL 700 per person per month. According to
the information provided by the bureau, employee salary amounted to GEL 500-550
per person per month but in consideration of the heavy workload, the majoritarian MP
increased the salaries.
Figure 8. Number of employees in each bureau and their annual salary budgets 17
Name of district
Kutaisi
Aspindza
Senaki
Tsageri
Batumi
Isani
Vani
Akhmeta
Akhaltsikhe
Samtredia
Vake
Lagodekhi
Ninotsminda
Mtskheta
Chokhatauri
17

Number of
employees
4
8
4
5
5
3
5
5
12
4
4
4
6
6
3

Annual salary
budget
42 000
45 372
32160 2015
48 000
43 778
43 200
49 020
38 400
46 764
44 540 (2015)
40 800
39 000
31 500
47 056 (average)
41 768 (2015)

The table provides information about bureaus of majoritarian MPs that provided the public
information requested by ISFED.

Ozurgeti
Dusheti
Schkhere
Poti
Saburtalo
Dedoplistskaro
Chkhorotsku
Kharagauli
Shuakhevi
Nadzaladevi
Ambrolauri

4
5
5
4
3
6
5
6
5
3
7

Keda

38 400
37 682 (2015)
49 025 (2015)
39 150 (2015)
36 600
38 760
32 000
37 032 (average)
46 800
36 000 (2015)
Information
incomplete
Information
incomplete

is
is

Analysis of the information provided by majoritarian MPs illustrates that number of

employees varies across bureaus and it does not depend on number of constituents in
a majoritarian district concerned or on any other characteristics of the district. There
is no uniform practice or a legal standard defining the number of employees in the
bureaus. In addition, there are no official criteria or rules for selection of employees
or principles for providing remuneration to bureau employees.

VI. Actions Taken in Response to Requests of Citizens

In terms of actions taken in response to requests of citizens, information provided by
majoritarian MPs suggests that majoritarian MPs and their bureaus act as channels of
communication between relevant government bodies and local citizens.
For instance, according to the information provided by Nadzaladevi majoritarian MP,
she received letters about social issues, health care, provision medication, land
legalization, payment of utility bills, earthquake consequences, water system,
improvement of sewer system, installment of counters, etc.
Analysis of the information provided by bureaus of majoritarian MPs suggests that
requests vary across majoritarian districts (table 10).
According to the information provided by bureaus of 27 majoritarian MPs,
majoritarian MPs of Poti, Nadzaladevi, Akhmeta, Kutaisi and Vake received most
number of requests/appeals from citizens.
Table #10 Requests received by majoritarian MPs from their constituents
Name of district
Kutaisi
Aspindza
Senaki
Tsageri
Batumi
Isani
Vani
Akhmeta
Akhaltsikhe
Samtredia
Vake
Lagodekhi
Ninotsminda
Mtksheta
Chokhatauri
Ozurgeti
Dusheti
Sachkhere
Poti
Saburtalo
Dedoplistskaro
Chkhorotsku
Kharagauli
Shuakhevi
Nadzaladevi
Ambrolauri
Keda

Written requests
1538
75
716
436
778
731
735
2338
38
230
1227
151
159
242
95
800
517
797
2491
404

Verbal requests
2000

878

3600
1200

98
683
63
2387
92
216

123
1200
600

Based on the information provided by bureaus of all majoritarian MPs, requests

received by the bureaus of majoritarian MPs mostly fall within purviews of the local
self-government, the Ministry of Labor, Health and Social Affairs or other state
agencies. The only exception was the bureau of Ninotsminda Majoritarian MP.
According to the information provided by the majoritarian MP of Ninotsminda, a
total of 159 requests were received. The MP reviews and responds the requests in
written. According to the MP, all requests have been granted since 2012.
According to Tetritskaro majoritarian MP, for solving problems that his constituents
were facing, he applied to the local government on numerous occasions with a request
to study economic situation of local families and provide subsequent
recommendations to the Social Service Agency but local Gamgeoba never acted on
these requests. The MP stated that despite a number of attempts, the local government
refuses to communicate and cooperate. The latter believes that this has to do with the
fact that he is a member of an opposition political party.
According to Poti majoritarian MP, most requests received by the bureau concern
issues that fall under the purview of the local government.
According to the bureau of Poti majoritarian MP, their efforts to make sure that the
local government was aware of local problems entailed a survey (by phone and by
door-to-door campaign) and referral of written and verbal requests of local citizens.
According to the bureau, following the local self-government elections in 2014,
cooperation between the bureau and the local self-government became more effective.
In addition, also according to the bureau, they have a mechanism of coordination with
different bodies of executive government, which makes it easier to find legal solutions
to local problems and concerns.
The bureau of Aspindza majoritarian MP refers most citizen requests to relevant
authorities for further actions.
According to the bureau of Senaki majoritarian MP, they partner with the local
government and act as an intermediary between the latter and the local population to
find solutions to local problems. Majority of issues that local citizens complain about
falls under the purview of the local self-government, ministries and other relevant
state bodies. ISFED found that bureaus of the following majoritarian MPs employ the
same practice: Tsageri, Isani, Vani, Akhaltsikhe, Samtredia, Vake, Mtskheta,
Chokhatauri, Ozurgeti, Dusheti, Sachkhere, Saburtalo, Chkhorotsku,
Kharagauli, Shuakhevi, Batumi and Kutaisi majoritarian MPs.
Based on the analysis of information provided by majoritarian MP bureaus, it is safe
to conclude that voters address them concerning issues that fall within the purview of
local self-government and therefore, majoritarian MPs lack means for solving these
problems themselves or through their bureaus. Bureaus only register requests and
refer them to competent bodies for further actions.
Bureaus are established for the length of respective majoritarian MPs term and their
main functions include: receiving citizens, reviewing letters, complaints and appeals
of citizens, preparing subsequent findings and proposals for the majoritarian MPs
consideration.
The bureau registers, records, examines and takes further actions in response to
letters, complaints and appeals addressed to majoritarian MP. It also facilitates
meetings of majoritarian MP with constituents.

Functions of the bureau also include: facilitating communication of the majoritarian

MP with political unions, community organizations and media; providing
organizational and technical support.
According to the Regulations, within the limits of its competencies the bureaus also
cooperates with structural units of the Office of the Parliament, with parliamentary
committees, factions and ad-hoc commissions, as well as with local self-governments,
institutions and community organizations. 18

18 Regulations for Determining the Functions, the Rules of Organization and Activity of the Bureau of
MP Elected through Majoritarian Voting System, and [for determining] Rules for Spending Funds
Allocated from the Budget of the Parliament for the Bureau, Article 2

VII.

Statistics of Meetings with Constituents

According to results of the public attitudes survey published by NDI on April 13,
2014 19, vast majority of respondents said that there is a minimum communication
between constituents and their respective majoritarian MPs. 92% of respondents said
that they have never addressed a member of the Parliament or their bureau with any
request or concern since the October 2012 parliamentary elections; 97% said that they
have never been personally contacted by an MP since the October 2012 parliamentary
elections.
58% of respondents dont know who their majoritarian member in the Parliament is,
while 11% provided incorrect answers. 68% of those surveyed dont know who their
majoritarian MP is.
Interestingly, 70% of respondent dont know how to address their majoritarian
member of the Parliament.
Based on the analysis of information provided to ISFED, majoritarian MPs usually
meet their constituents during field visits or in their office, during a non-session week
or as needed. Schedule of these meetings varies depending on official travels and
schedules of individual MPs.
ISFED wanted to determine statistics of meetings of majoritarian MPs with
constituents and format of communication. We addressed majoritarian MPs with
corresponding questions and received different answers. In particular, information
provided by most of the bureaus did not provide a segregated data by types of
meetings (meetings during field visits or inside MPs office). Most bureaus provided
overall numbers or generally stated that the MP meets constituents on a regular basis.

Table 11 Meetings of individual majoritarian MPs with constituents

District
Nadzaladevi
Aspindza

Number of meetings
58
230

Senaki
Tsageri
Batumi
Vani
Akhmeta
Akhaltsikhe
Samtredia
Vake
Lagodekhi
Ninotsminda
Mtskheta
Chokhatauri
Ozurgeti

253
58
145
250
64
800
152
43
456
Information was incomplete
408
50
6

See from p.7: http://www.civil.ge/files/files/2016/NDI-Georgia-March-2016-PoliticalRatingsgeo.pdf

19

Dusheti
Sachkhere
Poti
Saburtalo
Chkhorotsku
Kharagauli
Shuakhevi
Kutaisi
Keda
Ambrolauri

80
89
180
60
Information was incomplete
128
250
49
324
Information was incomplete

VIII. Conclusion
Based on the information summarized in this report, it is safe to conclude that the
institute of majoritarian MP is no different from proportional members of the
parliament, functionally or conceptually. Mobilization of additional resources from
the budget to support the work of majoritarian MPs is not oriented on results.
Majoritarian MPs are essentially unable to solve local problems and therefore, their
functions and competencies are no different from those of proportional members of
the parliament.
MP bureaus fail to adequately record and maintain statistics of meetings with
constituents, to generalize requests/concerns of local population to identify common
problems. The only exception is the bureau of Nadzaladevi majoritarian MP that
prepares statistics of appeals and concerns of local constituents and records dates of
each request/appeal.
It is safe to conclude that in Georgian reality the institute of majoritarian MP is
ineffective and the practice of its interaction with local authorities is wrong. Because
local population usually addresses their majoritarian MPs about issues that fall within
the purview of local government there is a serious risk that majoritarian MPs will try
to grossly interfere with the work of self-government or use it to advance their
political interests.

IX.

Recommendations
It is important to introduce a legal provision that will regulate the number of
bureau employees. The law should define the number of bureau employees
depending on the number of constituents in the electoral district concerned or
other relevant criteria;
The law should establish criteria and procedures for selection of bureau
employees and define their salary scale;
The Rules of Procedure of the Parliament of Georgia should define reasonable
and adequate sanctions for invalid absences of MPs during regular and special
plenary sittings;
Detailed information about performance of majoritarian MPs should be
published on the website of the Georgian Parliament, including schedule of
their meetings with constituents, means of communication with MPs and
bureau office hours;
Bureaus should use electronic means of communication with constituents,
including websites, and proactively publish information about MPs meetings
and performance. This will facilitate communication of constituents with
bureaus and registration/categorization of their appeals.