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თვითმმართველობის ორგანოების საქმიანობა და დეცენტრალიზაციის პროცესი - სამოქალაქო ორგანიზაციების შეფასებები
თვითმმართველობის ორგანოების საქმიანობა და დეცენტრალიზაციის პროცესი - სამოქალაქო ორგანიზაციების შეფასებები
organoebis saqmianoba da
decentralizaciis procesi
samoqalaqo organizaciebis Sefasebebi
sarCevi
Sesavali............................................................................................................................................................. 6
ZiriTadi mignebebi......................................................................................................................................... 7
1. adgilobrivi TviTmmarTveli organoebis saqmianobis gamWvirvaloba da sajarooba
1.1 sajaro informacia....................................................................................................................... 8
1.2 veb-gverdebi................................................................................................................................... 9
1.3 sakrebulos sxdomebi................................................................................................................... 10
2. TviTmmarTvelobis finansebi da sabiujeto procesi.................................................................... 12
3. saxelmwifo Sesyidvebi............................................................................................................................. 14
4. TviTmmarTveli organoebis kompetencia da uflebamosilebebi................................................ 15
5. decentralizaciis procesis Sefaseba................................................................................................ 17
6. sazogadoebis CarTuloba da kontroli
6.1 moqalaqeebis CarTuloba adgilobrivi TviTmmarTvelobis ganxorcielebaSi......... 18
6.2 sazogadoebis damokidebuleba da kontroli...................................................................... 18
7. sakadro politika...................................................................................................................................... 19
8. TviTmmarTvelobis arCevnebi................................................................................................................. 21
Sesavali
saqarTveloSi samoqalaqo organizaciebi did rols asruleben TviTmmarTvelobis koncefciis SemuSavebaSi, kanonmdeblobis daxvewaSi, TviTmmarTvelobis praqtikis ganviTarebaSi, moqalaqeTa monawileobis waxalisebaSi, TviTmmarTvelobis saqmianobis monitoringsa da SefasebaSi.
bolo wlebSi, samoqalaqo organizaciebis mier araerTi angariSi momzadda, romelTa umTavresi mizani saqarTveloSi decentralizaciis procesis gaanalizeba da Sefaseba iyo.
winamdebare angariSi ZiriTadad efuZneba samoqalaqo organizaciebis Sexvedras 2015 wlis 12-13 dekembers, gudaurSi, romelSic monawileobdnen qveynis masStabiT momuSave arasamTavrobo organizaciebi da samoqalaqo sazogadoebis regionuli qselis wevri regionuli arasamTavrobo organizaciebi.
diskusia mieZRvna TviTmmarTvelobis morigi reformisa da zogadad, decentralizaciis Sefasebas. winamdebare angariSSi aseve gamoyenebulia bolo Tveebis ganmavlobaSi samoqalaqo organizaciebis mier
momzadebuli angariSebi da sxvadasxva Sefasebebi.
angariSis mizania Tavi mouyaros samoqalaqo seqtoris mier ukanaskneli periodis manZilze TviTmmarTvelobis reformisa da saqmianobis Sesaxeb Sefasebebs da amis safuZvelze warmoadginos garkveuli xedva, rac gamovlenili problemebis mosagvareblad SeiZleba iyos efeqtiani. TviTmmarTveloba
sazogadoebasTan yvelaze axlos myofi xelisuflebaa da SeuZlebelia kargi reforma mowyvetili iyos
samoqalaqo sazogadoebisgan. am ukanasknelis mier ganxorcielebuli saqmianoba, misi gamocdileba
da eqspertuli codna sasargeblo iqneba reformis procesisaTvis. gamowvevebis aRmosafxvrelad da
realurad decentralizebuli adgilobrivi TviTmmarTvelobis misaRebad mniSvnelovania centraluri, municipaluri xelisuflebebisa da sazogadoebis warmomadgenelTa TanamSromloba.
angariSi momzadebulia samoqalaqo ganviTarebis saagentosa (sida) da samarTliani arCevnebisa da
demokratiis saerTaSoriso sazogadoebis mier, samoqalaqo sazogadoebis regionul qselsa (R-CSN) da
erovnul samoqalaqo organizaciebTan TanamSromlobiT.
angariSis momzadeba SesaZlebeli gaxda fondis Ria sazogadoeba _ saqarTvelo, aRmosavleT-dasavleTis marTvis institutis ACCESS programis, romelsac aSS saerTaSoriso ganviTarebis saagento
afinansebs da erovnuli wvlili demokratiisaTvis (NED) mxardaWeriT.
ZiriTadi mignebebi
TviTmmarTvelobis ganviTareba da mmarTvelobis decentralizacia, saqarTvelos mier damoukideblobis mopovebis Semdgom, erT-erT umTavres gamowvevas warmoadgens. sxvadasxva dros, sxvadasxva modelis gamoyenebis miuxedavad, dRemde araa naTeli, sazogadoebriv konsensusze dafuZnebuli saxelmwifos xedva decentralizaciis procesTan dakavSirebiT.
2012 wlis arCevnebis Semdgom, xelisuflebaSi mosulma axalma gundma erT-erT mTavar prioritetad
decentralizacia daasaxela. TviTmmarTvelobis reformis ganxorcieleba da realuri decentralizacia uaRresad mniSvnelovania demokratiuli mmarTvelobis misaRwevad. Sesabamisad, saxelmwifos
mxridan am mimarTulebiT cvlilebebis ganxorcieleba win gadadgmuli nabijia. Tumca, aRsaniSnavia,
rom xelisuflebis mier SemoTavazebuli ambiciuri decentralizaciis reformis koncefciidan, sabolood, 2014 wlis TebervalSi miRebul saqarTvelos organul kanonSi adgilobrivi TviTmmarTvelobis
kodeqsi, cvlilebebis mcire nawili aisaxa.
axali kodeqsiT mTeli rigi sakiTxebi samomavlo reformis farglebSi unda gadawydes. miuxedavad imisa, rom kodeqsis safuZvelze Seiqmna 7 axali TviTmmarTveli qalaqi srulyofili decentralizacia da
municipalitetebis optimizacia kvlav samomavlod gadasawyvet sakiTxTa siaSi darCa. reformis avtorebi amas ramdenime mizezs ukavSirebdnen, maT Soris, mosaxleobis saerTo aRweris ararsebobas, romelic
2013-2014 wlebSi daiwyo da misi Sedegebis gaTvaliswinebiT unda moxdes reformis erT-erTi mTavari
nawilis ganxorcieleba. garda amisa, reformis gadadebis kidev erTi mizezi arsebiTadaa dakavSirebuli
Semosavlebis da uflebamosilebebis gadanawilebasTan, romelic etapobrivad unda ganxorcieldes.
miuxedavad araerTi samomavlod gadadebuli sakiTxisa, 2012 wlis saparlamento arCevnebisa da reformis ZalaSi Sesvlis (2014 wlis TviTmmarTvelobis arCevnebis Sedegebis gamocxadebis dRidan) Semdeg, ramdenime arsebiTi cvlileba da saintereso tendencia SeiniSneba.
2014 wlis reformis Sedegad miRweuli iqna iseTi mniSvnelovani siaxleebi, rogoricaa merebisa da
gamgeblebis pirdapiri wesiT arCeva, 7 axali municipalitetis Seqmnis gziT qalaqisa da soflis rolis
gaZliereba am TviTmmarTvel erTeulebSi. politikuri procesebis Sedegad sagrZnoblad gaizarda gamWvirvalobis xarisxi da municipalitetis organoebi ufro met mzaobas gamoxataven samoqalaqo CarTulobisa da sazogadoebasTan TanamSromlobisaTvis.
aRniSnuli miRwevebis miuxedevad, problemurad rCeba informaciis Tavisuflebis calkeuli aspeqtebi, gamowvevaa informaciis proaqtiuli gamoqveyneba, municipalitetebis finansuri damoukidebloba da moqalaqeTa realuri CarTuloba gadawyvetilebaTa miRebaSi, efeqtiani da korufciisagan Tavisufali saxelmwifo Sesyidvebi da, aseve, nepotizmis faqtebi, gansakuTrebiT kadrebis SerCevisas.
aucilebelia TviTmmarTvelobis reformis farglebSi droulad ganxorcieldes teritoriuli optimizacia, municipalitetebi gaaqtiurdnen sakuTari finansebis mozidvaSi, gadamzaddes kadrebi, rom
TanamSromlebs hqondeT saTanado codna da unar-Cvevebi informaciis sajaroobis, biujetis droulad
da saTanadod dagegmvis da sxva sakiTxebis Sesaxeb, rac mniSvnelovania TviTmmarTvelobis efeqturi
funqcionirebisaTvis. aseve, kvalificiuri kadrebis mosazidad aucilebelia gamWvirvale konkursebis
Catareba, rac dafuZnebuli iqneba obieqturi Sefasebis sistemaze.
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1.2 veb-gverdebi
interneti informaciis miRebis erT-erTi efeqturi saSualebaa. aqedan gamomdinare, mniSvnelovania,
rom TviTmmarTvelobis organoebs hqondeT veb-gverdebi, romlis saSualebiTac moxdeba sazogadoebisTvis ganaxlebuli da saintereso informaciis miwodeba. aRsaniSnavia, rom saqarTvelos zogadi administraciuli kodeqsis 28-e muxlis me-2 nawilis Tanaxmad, sajaro dawesebuleba valdebulia uzrunvelyos sajaro informaciis proaqtiuli gamoqveyneba Sesabamisi kanonqvemdebare normatiuli aqtiT
dadgenili wesiTa da pirobebiT. adgilobrivi TviTmmarTvelobis kodeqsSi 2015 wlis 22 ivliss Sesuli
cvlilebebi, aseve awesebs proaqtiuli gamoqveynebis minimalur standarts. TviTmmarTvelobis kodeqsiT1 dadgenilia is informacia, romelic municipalitetma unda gamoaqveynos proaqtiulad. ramdenime
municipalitetma miiRo normatiuli aqti, romliTac ganisazRvreba calkeuli sakiTxebi informaciis
veb-gverdze ganTavsebis Taobaze. Tumca, aseTi aqti ar aqvs miRebuli yvela municipalitets. miRebuli
aqtebi srulyofilad ar awesrigebs informaciis gamoqveynebisa da moTxovnis wess. garda amisa, proaqtiulad gamosaqveynebeli sajaro informaciis nusxa gansxvavdeba sxvadasxva municipalitetSi da zog
SemTxvevaSi Zalian dabali standartia dawesebuli.
aq, aseve, aRsaniSnavia is modeluri dadgenileba, romelic fond Ria sazogadoeba _ saqarTvelos
mxardaWeriT erToblivad SeimuSaves ~mmarTvelobiTi sistemebis ganviTarebis centrma (MSDC) da vano
xuxunaiSvilis saxelobis efeqtiani mmarTvelobis sistemis da teritoriuli mowyobis reformis centrma. am modelur dadgenilebaSi mocemuli standarti gacilebiT maRalia vidre romelime municipalitetis dadgenileba sajaro informaciis proaqtiulad gamoqveynebis Sesaxeb. aRniSnuli modeluri
dadgenileba regionuli ganviTarebisa da infrastruqturis saministrom rekomendaciis saxiT gaugzavna saqarTvelos yvela municipalitetis sakrebulos, Tumca ucnobia gaiTvaliswines Tu ara maT es
rekomendacia.
samoqalaqo organizaciebis mier ganxorcielebuli monitoringis Tanaxmad, zogierT TviTmmarTvel
organos saerTod ar aqvs veb-gverdi. aris aseve SemTxvevebi, roca veb-gverdi arsebobs, Tumca ar xdeba misi ganaxleba da Sesabamisad, SeuZlebelia axali informaciis miReba mimdinare sakiTxebze.2 unda
aRiniSnos, rom sakrebuloebis umravlesobas veb-gverdze ganTavsebuli aqvs miRebuli gankargulebebi/dadgenilebebi, rac dadebiT faqts warmoadgens, Tumca biujeti TviTmmarTvelobebis mxolod mesameds aqvs ganTavsebuli veb-gverdze.3
saqarTvelos organuli kanoni adgilobrivi TviTmmarTvelobis kodeqsi, muxli 851, punqti 3
TviTmmarTvelobebis mier veb-gverdebisa da socialuri qselebis gamoyenebis Sesaxeb detaluri informaciisTvis
ixileT adgilobrivi TviTmmarTvelobis organoebis veb-gverdebis monitoringis angariSi, samarTliani arCevnebisa da demokratiis saerTaSoriso sazogadoeba, 2015 wlis 30 ivnisi. xelmisawvdomia aq: http://www.isfed.ge/main/916/geo/
1
agreTve ixileT blogi ramdenad gamarTulad muSaobs imereTis municipalitetebis oficialuri vebgverdebi. saerTaSoriso gamWvirvaloba _ saqarTvelo. 2016 wlis 5 Tebervali. http://www.transparency.ge/blog/ramdenad-gamartulad-mushaobs-imeretis-munitsipalitetebis-opitsialuri-vebgverdebi
aRsaniSnavia, rom biujeti warmoadgens normatiul aqts da misi saqarTvelos sakanonmdeblo macnes oficialur
veb-gverdze ganTavseba (matsne,gov.ge) savaldebuloa. Tumca, macnes veb-gverdze municipalitetis biujeti ar
aris iseTive xelmisawvdomi, rogorc Tavad am TviTmmarTvelobis veb-gverdze gamoqveynebaa.
3
WiaTurelTa kavSirma 2012 wels mosaxleobis organizeba moaxdina da 1000 xelmoweriT municipalitetis sakrebulos mimarTa. mimarTvis safuZvelze sakrebulom miiRo dadgenileba informaciis wesis uzrunvelyofis Sesaxeb, romlis mixedviTac
sistematiurad unda xdebodes informaciis mopoveba da gavrceleba maT xelT arsebuli saSualebebiT.
2
organuli kanoni adgilobrivi TviTmmarTvelobis kodeqsi, muxli 87.
3
iqve.
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muxlis pirveli punqtis Sesabamisad, am reglamentiT dadgenili wesiT, moiwveva TveSi erTxel mainc.
sakrebulos sxdoma tardeba, rogorc wesi, yoveli Tvis pirvel orSabaTs (xolo, Tu orSabaTi arasamuSao dRea, momdevno samuSao dRes). TviTmmarTvelobebis sakrebulos reglamentebs Tu gadavxedavT
bevr SemTxvevaSi igive teqstia gadmotanili (WiaTura, Telavis Temi, q. mcxeTa), mxolod dRea Secvlili
maTTvis misaRebi sxva dRiT (zogan oTxSabaTia, zogan orSabaTi da a.S.). Tumca, ramdenime municipalitetSi (rusTavi, qobuleTi) teqsti nawilobrivaa gadmotanili. miTiTebulia, rom sxdoma tardeba TveSi erTxel mainc, magram ar aris gansazRvruli Sesabamisi dRe. weria saWiroebisamebr an sakrebulos
Tavmjdomaris gadawyvetilebiT.
im SemTxvevaSi, roca reglamentiT konkretuli dRe aris gansazRvruli sxdomisTvis amis Sesaxeb
ician im dainteresebulma pirebma, romlebic aqtiurad muSaoben TviTmmarTvelobis sakiTxebze, Tumca es SeiZleba ar iyos cnobili farTo sazogadoebisTvis. problemas warmoadgens informaciis miReba
iseT SemTxvevebSi, rodesac sxdomis konkretuli dRe ar aris gansazRvruli. aseve, problemaa riggareSe sxdomebis Sesaxeb sazogadoebis droulad informireba.
sxdomebis Sesaxeb informaciis gavrceleba xdeba socialuri qselebis, veb-gverdebis da mediis
saSualebiT. mosaxleobis informirebis yvelaze gavrcelebul meTods stendebi warmoadgens, romelic
ganTavsebulia TviTmmarTvelobis SenobaSi. Tumca, problemaa is, rom:
soflis mosaxleobas ar aqvs saSualeba mudmivad Tvalyuri adevnos stendebs;
aris SemTxvevebi, roca stendebi ganTavsebulia moqalaqeTa momsaxurebis zonis miRma, sadac saSvis
gareSe Sesvla SeuZlebelia.
pozitiur precedents warmoadgens calkeul SemTxvevebSi sxdomebis pirdapiri translacia. aRsaniSnavia, rom garkveul SemTxvevaSi ar xdeba sxdomebis dRis wesrigis winaswari gamoqveyneba, rac kanoniT dadgenili valdebulebis darRvevaa.1
unda aRiniSnos, rom kargi magaliTia goris municipaliteti, sadac samoqalaqo organizaciebs informacia sxdomebis Sesaxeb winaswar egzavnebaT eleqtronul fostaze da aseve, am informaciis gavrceleba xdeba socialuri qselebis saSualebiT.
sxdomebze daswreba araadaptirebuli infrastruqturis gamo problemas warmoadgens SSm pirebisTvis. mxolod ramdenime TviTmmarTvelobaSi aris adaptirebuli garemo Senobis pirvel sarTulze Sesasvlelad, magaliTad rusTavSi.
sxdomebis gamarTvis wesi, iseve, rogorc bevri sxva sakiTxi mowesrigebulia sakrebulos reglamentiT (debulebiT). aRsaniSnavia, rom TviTmmarTvelobis warmomadgenlobiTi organos reglamentebi
xSir SemTxvevaSi erTgvarovania. es nawilobriv gamowveulia am organoebis mier erTmaneTisagan dokumentebis kopirebiT da, agreTve, maTTvis miwodebuli TviTmmarTvelobis saxelmZRvaneloSi mocemuli
1
saqarTvelos zogadi administraciuli kodeqsi. muxli 34. sakrebulo, romelic warmoadgens kolegiur sajaro dawesebulebas,
valdebulia erTi kviriT adre sajarod gamoacxados momavali sxdomis, misi Catarebis adgilis, droisa da dRis wesrigis
Taobaze, xolo Sesabamisi gadawyvetilebis miRebisas agreTve misi daxurvis Sesaxeb.
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Sablonis gamoyenebiT.1 saxelmZRvanelos mizani iyo axladSeqmnili municipalitetebisTvis gaemartivebina SemWidrovebul droSi gasatarebeli RonisZiebebi, Tumca Sablonebis gamoyeneba masiurad, adgilobrivi realobis gauTvaliswineblad misaRebi praqtika araa.
rekomendaciebi praqtikis gaumjobesebisTvis:
gamWvirvalobisa da sajaroobis mimarTulebiT arsebuli problemebis mogvarebisaTvis aucilebelia moxeleTa kvalifikaciis amaRleba rogorc municipaluri organoebis, ise adgilobrivi da saerTaSoriso organizaciebis aqtiurobiT (satreningo programebi, saxelmZRvaneloebi da a.S.), gansakuTrebiT informaciis gacemis vadebsa da sajaro informaciis arsTan dakavSirebiT;
aucilebelia, yvela municipalitetma miiRos normatiuli aqti informaciis proaqtiulad gamoqveynebisa da sajaro informaciis gacemis Taobaze;
mniSvnelovania yvela adgilobrivi TviTmmarTvelobis organos hqondes veb-gverdi, sadac sistematurad moxdeba mosaxleobisTvis saintereso da saWiro informaciis ganTavseba da mudmivad ganaxleba;
aucilebelia, sakrebulos Sesabamisma samsaxurebma saTanado informaciis arxebiT droulad, kanoniT gansazRvruli wesiT gamoaqveynon informacia sakrebulos sxdomebis Sesaxeb da gaataron yvela zoma
dainteresebuli pirebisaTvis sxdomaze daswrebis uzrunvelsayofad. maT Soris, sxdomis dRes gaamartivon
moqalaqeTa daSveba saSvTa biuros biurokratiuli meqanizmis gauqmebiT an specialuri saSvis meSveobiT;
mniSvnelovania, rom TviTmmarTvelobis Senoba adaptirebuli iyos ise, rom yvela dainteresebul pirs SeeZlos SenobaSi, ara mxolod mis pirvel sarTulze, Sesvla.
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municipalitetebi kapitaluri proeqtebis gansaxorcieleblad damatebiT sabiujeto Tanxebs ZiriTadad regionebSi gansaxorcielebeli proeqtebis fondidan da aseve, municipaluri ganviTarebis fondidan iReben. garda saxelmwifo fondebisa, TviTmmarTvelobebs xSirad eZlevaT SesaZlebloba, saerTaSoriso organizaciebis dafinansebac moipovon, Tumca saTanado codnisa da unar-Cvevebis arqonis
gamo, am SesaZleblobebs ver iyeneben.
aRsaniSnavia, rom kanonqvemdebare aqtebiT ar aris gansazRvruli municipalitetisaTvis delegirebuli uflebamosilebebis gansaxorcieleblad gamoyofili miznobrivi transferis gaangariSebis wesebi da isini mxolod jamuri cifris saxiT aris asaxuli saxelmwifo biujetis Sesaxeb kanonSi, rac
praqtikaSi garkveul sirTuleebs iwvevs.
sabiujeto procesSi daintersebul mxareTa monawileobisTvis problemas warmoadgens is, rom kanonmdeblobiT ar aris naTlad gansazRvruli, Tu ras gulisxmobs da rogor unda mimdinareobdes sajaro ganxilva, vin da rogor unda iyos mowveuli aseT ganxilvebze, ra saxiT unda gavrceldes informacia
sazogadoebaSi da a.S., rac terminis gagebis da misi interpretaciis bundovanebas iwvevs. xSir SemTxvevaSi, biujetis sajaro ganxilva iseT dros imarTeba, rom Sesabamisi cvlilebebis ganxorcieleba SeuZlebeli xdeba da ganxilvis dros miRebuli ukukavSiri azrs kargavs.
biujetis ganxilvis procesi, xSirad formalur xasiaTs atarebs da masSi ar aisaxeba mosaxleobis
mier gansazRvruli prioritetebi, rac Semdgom ganapirobebs maT pasiurobas TviTmmarTvelobis saqmianobaSi CarTulobis kuTxiT.
rekomendaciebi praqtikis gaumjobesebisTvis:
aucilebelia, gaRrmavdes finansuri decentralizaciis procesi, adgilobrivi sagadasaxado Semosavlebis gazrdis mimarTulebiT, amasTan gadaixedos gaTanabrebiTi transferis formula imgvarad,
rom municipalitetis sagadasaxado Semosavlebis zrda ar moqmedebdes misTvis centraluri biujetidan gamosayofi transferebis moculobaze;
sasurvelia, SemuSavdes kanonqvemdebare aqtebi, sadac naTlad iqneba gansazRvruli municipalitetebisaTvis delegirebuli uflebamosilebebis gansaxorcieleblad gadacemuli miznobrivi transferebis gaangariSebis wesebi;
TviTmmarTvelobebis organoebi aqtiurad unda iyvnen CarTuli maTTvis gamosayofi transferis
gaangariSebaSi;
sasurvelia TviTmmarTvelobis organoebma iniciativa gamoiCinon damatebiTi saxsrebis mozidvaSi. saqarTvelos adgilobriv TviTmmarTvelobaTa erovnulma asociaciam, saerTaSoriso Tu adgilobrivma organizaciebma xeli unda Seuwyon TviTmmarTvelobebs Tanxebis moZiebaSi da saTanado informaciiTa da unar-CvevebiT aRWurvon isini;
sabiujeto procesis meti gamWvirvalobisa da am procesSi moqalaqeTa meti CarTulobisaTvis
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saWiroa biujetis ganxilva daigegmos droulad, rom SesaZlebeli iyos masSi mosaxleobis prioritetebisa da mosazrebebis asaxva. sasurvelia, biujetis sajaro ganxilvis wesi ufro detalurad gaiweros
sakrebulos reglamentiT, vidre es kanoniT aris gansazRvruli.
3. saxelmwifo Sesyidvebi
samoqalaqo organizaciebis gancxadebiT, TviTmmarTvelobebSi tenderebi cxaddeba sajarod, internetis saSualebiT da informacia xelmisawvdomia yvelasTvis. amasTan, uaryofiTad unda Sefasdes
gamartivebuli Sesyidvis gamoyenebis tendencia, rac gulisxmobs sakmaod didi Tanxebis sajaro da gamWvirvale procesis gverdis avliT xarjvis SesaZleblobas.1
tenderebTan dakavSirebiT ZiriTad problemebs warmoadgens erTi da igive kompaniis mier tenderis
mogeba da nepotizmis faqtebi, rodesac satendero pirobebi imgvarad dgeba, rom moergos konkretul
kompanias an pirs. aRsaniSnavia, rom samoqalaqo organizaciebis dakvirvebiT, municipalitetebi samuSaoebis vadis darRveviT an arasaTanadod Sesrulebisas ar mimarTaven Sesabamis zomebs.
aseve, zogierTi samoqalaqo organizacia Tvlis, rom arasworia tenderebSi monawile kompaniebis
SerCevisas ZiriTadi aqcentis gakeTeba fasze da ara xarisxze, rac uaryofiTad aisaxeba Sesrulebul
samuSaoze. didi kompaniebi Tavs ikaveben tenderSi monawileobisgan, mcirdeba konkurencia da miRebuli produqtis xarisxi Sesabamisad dabalia. arsebuli eleqtronuli sistemis meSveobiT korufciis
riskebi sagrZnoblad aris Semcirebuli, Tumca xarisxis sakiTxi kvlav seriozuli gamowvevaa. am mxriv,
SesaZlebelia ramdenime gziT problemis Tavidan acileba, Tumca ZiriTadad es Semsyidvel organizaciazea damokidebuli (saTanadod SemuSavebuli satendero dokumentacia, winaswari saeqsperto daskvnebi, momsaxurebis an saqonlis Cabarebamde saTanado eqspertizis an auditis moTxovna da a.S.). garda
amisa, arsebobs faswarmoqmnis instituti, romelic kanonmdeblobaSi swored am problemis met-naklebad mosagvareblad Caido.2 miuxedavad amisa, misi qmediTi gamoyeneba praqtikaSi xSirad ar xdeba. samoqalaqo organizaciebi Tvlian, rom es SeiZleba Sesabamisi sajaro moxeleebis kompetenciis naklebobiT
aixsnas.
problema aris Savi siis efeqturad gamoyenebac, radgan xSirad Sav siaSi moxvedrili arakeTilsindisieri pirebi an kompaniebi axali subieqtis registraciis gziT kvlav monawileoben saxelmwifo SesyidvebSi.
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ix. saxelmwifo Sesyidvebi 2013-2014 wlebSi: rogor da raSi ixarjeba biujeti. saerTaSoriso gamWvirvaloba _ saqarTvelo.
2015 wlis ivlisi. xelmisawvdomia aq: http://www.transparency.ge/sites/default/files/post_attachments/saxelmcipo_shesqidvebi_2013-2014_clebshi.
pdf [ukanasknelad gadamowmda 2016 wlis 20 Tebervals].
tenderiT gamocxadebuli fasis 20%-iT an metiT dawevis SemTxvevaSi pretendentma unda waradginos saTanado
dokumenti, rac daadasturebs, rom aseT fasad Sesruleba SesaZlebelia. saxelmwifo Sesyidvebis saagentos Tavmjdomaris 2011 wlis 7 aprilis N9 brZaneba gamartivebuli eleqtronuli tenderisa da eleqtronuli tenderis
Catarebis wesis damtkicebis Sesaxeb. muxli 11.21.
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problemuria TviTmmarTvelobis uflebamosilebebi da maTi gansazRvris wesi. araerTi sakuTari uflebamosileba, romelsac mxolod adgilobrivi TviTmmarTveloba unda axorcielebdes centraluri xelisuflebis Carevis sagani xdeba (miTiTebebiT, normatiuli aqtebiT), xolo TviTmmarTveloba Tavis mxriv SeiZleba iseT uflebamosilebas axorcielebdes, romelic centraluri an avtonomiuri respublikis uflebamosileba iyos (municipaluri organoebis saqmianobis uflebamosilebaTa gamijvnasTan Sesabamisobis safuZvliani kvleva, samwuxarod, dReis mdgomareobiT ar arsebobs).
municipalitetebis TanamSromlobis sakiTxi, adgilobrivi TviTmmarTvelobis reformis Sedegad,
ufro win wamoiwia. kanoniT ganisazRvra calkeul uflebamosilebaTa efeqtiani Sesrulebis mizniT erToblivi saqmianobis ufleba.1 Tumca dakvirvebam gamoavlina, rom rig SemTxvevebSi municipalitetebs
Soris ar xdeba garkveuli sakiTxebis irgvliv TanamSromloba da komunikacia araefeqturia.
kanonmdeblobaSi arsebuli meqanizmi, romliTac sakrebulos SeuZlia meri/gamgebeli Tanamdebobidan gadaayenos uaryofiTad Sefasda samoqalaqo organizaciebis mier. aRniSnuli regulacia
merebisa da gamgeblebis pirdapiri wesiT arCevis sakanonmdeblo siaxlis suliskveTebas ewinaaRmdegeba.
erT-erT mniSvnelovan problemas warmoadgens is, rom ar arsebobs municipalitetis qonebis srulyofili aRricxva. Sesabamisi dokumentacia, romelic asaxavs municipalitetis sakuTrebaSi arsebul (an
balansze ricxul) qonebas arsebobs, Tumca imis gamo, rom srulyofili inventarizacia yvela TviTmmarTvelobaSi ar Catarebula, dokumentalurad asaxuli qoneba realobas SeiZleba arc Seesabamebodes.
aRsaniSnavia, rom wlebis manZilze sxvadasxva reformis Sedegad axladSeqmnil Tu gardaqmnil TviTmmarTvel erTeulebs gadaecemodaT maTi winamorbedis qoneba arsebuli sabuTebis Sesabamisad. realurad ki qonebis arseboba da mdgomareoba umetesiwlad ar mowmdeboda, rac gamowveuli iyo Sesabamisi
pasuxismgeblobis SiSiT.
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aucilebelia, municipalitetebs Soris TanamSromlobis waxaliseba, rac gazrdis calkeuli saqmianobis efeqtianobas. aRniSnul procesSi mniSvnelovania adgilobriv TviTmmarTvelobaTa asociaciis da samxareo sakonsultacio sabWos roli;
aucilebelia TviTmmarTvel organoebSi Catardes balansze ricxuli qonebis inventarizacia da
detalurad aisaxos qonebis realuri mdgomareoba.
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mniSvnelovania sazogadoebrivi kontrolis gaaqtiureba. samoqalaqo seqtori da media maqsimalurad unda iyvnen CarTuli TviTmmarTvelobis saqmianobaSi. regionuli qselebis da platformebis
gamoyeneba codnisa da gamocdilebis gaziarebas Seuwyobs xels.
7. sakadro politika
TviTmmarTvelobis funqciebis efeqturad gansaxorcieleblad mniSvnelovania TviTmmarTvelobis
organoebi kvalificiuri da profesionali kadrebiT iyos dakompleqtebuli.
samoqalaqo organizaciebis dakvirvebiT, problemebi aris sakadro politikasTan da Catarebuli
konkursebisa da atestaciis procesTan dakavSirebiT. gamoikveTa araerTgvarovani praqtika sakonkurso-saatestacio komisiebis saqmianobis sajaroobasTan dakavSirebiT. magaliTad, samoqalaqo organizaciebs rig municipalitetebSi gasaubrebis procesze dakvirvebis saSualeba ar miecaT.1 amasTan, komisiis mier saboloo gadawyvetilebebis miRebis procesze daswrebis SesaZlebloba samoqalaqo organizaciebis warmomadgnelebs arcerT TviTmmarTvel organoSi ar hqondaT.
rig SemTxvevebSi, sakonkurso-saatestacio komisiebis oqmebis gadaxedvis Semdgom, gaCnda eWvi, rom
konkursi arakeTilsindisierad Catarda, kerZod, iyo SemTxvevebi, rodesac gasaubrebis Sedegad uari
eTqva maRali qulebis mqone kandidats da vakantur Tanamdebobaze ufro dabali qulebis mqone konkursanti aiyvanes.
problemas warmoadgenda sakonkurso-saatestacio komisiis oqmis mopoveba. ramdenime SemTxvevaSi
moTxovnis miuxedavad konkursants ar misces aRniSnuli oqmi, sadac aRwerili unda yofiliyo, Tu ra
mizeziT eTqva konkursants uari Tanamdebobis dakavebaze. problemebi dafiqsirda aseve kandidatebis
SefasebasTan dakavSirebiT, vinaidan sakonkurso-saatestacio komisiebs, rig SemTxvevaSi, ar hqondaT
debulebiT damtkicebuli Sefasebis forma, an ar iyenebdnen mas kandidatebis Sefasebisas. xolo, iq,
sadac arsebobda msgavsi Sefasebis forma is ar iZleoda konkursantis srulyofilad, obieqturad da
samarTlianad Sefasebis SesaZleblobas.
dakvirvebis Sedegad dafiqsirda komisiis wevrebis Tu sxva Tanamdebobis pirebis mxridan konkursantTa mimarT mikerZoebis, arasaTanado SekiTxvebis dasmisa da zewolis faqtebi.2
problemas, aseve, warmoadgens municipalitetis dawesebulebebis TanamSromelTa Tanamdebobidan
ganTavisufleba. IDFI-s mier Catarebuli kvlevis mixedviT, 2014 wels saqarTvelos adgilobrivi TviTmsamarTliani arCevnebisa da demokratiis saerTaSoriso sazogadoeba (ISFED) 5 TviTmmarTvel organoSi daakvirda gasaubrebis process, Tumca garkveuli SezRudvebiT: Tbilisis meria, quTaisis meria, goris meria, Telavis
meria, lanCxuTis municipaliteti; 10 TviTmmarTvelma organom uari ganacxada mimdinare Tu dagegmili gasaubrebebis etapze dakvirvebaze: ozurgeTis meria, rusTavis meria, axalcixis, ozurgeTis, aspinZis, qarelis, Telavis,
Terjolis, sagarejos, TeTriwyaros municipalitetebi;
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ix. sajaro moxeleTa atestaciisa da konkursebis monitoringis angariSebi. samarTliani arCevnebisa da demokratiis saerTaSoriso sazogadoeba. xelmisawvdomia aq: http://www.isfed.ge/main/855/geo/; http://www.isfed.ge/main/896/
geo/; http://www.isfed.ge/main/984/geo/ [ukanasknelad gadamowmda 2016 wlis 21 Tebervals].
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marTvelobis 91 dawesebulebidan (sakrebuloebidan da gamgeobebidan) jamSi sxvadasxva mizeziT ganTavisuflda 3251 adamiani. sajaro samsaxurSi adamianuri resursis msgavsi gadineba calsaxad miuTiTebs
sistemur problemaze1.
problemas warmoadgens gazrdili saStato erTeulebi regionebSi da nepotizmis faqtebi.2 aRsaniSnavia, rom adgilobrivi TviTmmarTvelobis kodeqsis erT-erTi siaxle iyo TviTmmarTvel organoebSi kadrebis maqsimaluri raodenobis gansazRvra.3 kanoniT dadgenili formulis safuZvelze umetes
SemTxvevaSi saStato ricxovnobis Semcireba unda momxdariyo, Tumca aRniSnuli wesi mxolod saStato nusxebiT gaTvaliswinebul adgilobrivi TviTmmarTvelobis sajaro mosamsaxureTa saStato raodenobas exeba. samoqalaqo organizaciaTa dakvirvebiT dasaqmebulTa raodenoba gaizarda calkeuli
municipalitetis aaip-ebSi, rac municipaluri servisebis gaumjobesebis ararsebobis fonze xelovnur
zrdad SeiZleba Sefasdes.4 amasTan, kadrebis SerCeva aaip-ebSi ar xdeba konkursis Sedegad, rac kidev
ufro zrdis nepotizmis SesaZleblobas.
konkursebisa da atestaciebis procesSi 2014 wlidan savaldebulo iyo testirebuli gamocdis etapi, romlis municipalitetis gareT gatanam meti obieqturobis safuZveli Seqmna. amasTanave, sajaro
samsaxuris Sesaxeb axali kanoniT 2017 wlis 1 ianvridan adgilobriv TviTmmarTvelobaSi sajaro samsaxuris dasawyebad aucilebeli iqneba Sesabamisi sertifikatis floba. mniSvnelovania, rom am axalma
regulaciam kidev ufro ar gaarTulos eTnikuri umciresobebiT dasaxlebul municipalitetebSi sakadro ganaxlebis procesi.
rekomendaciebi praqtikis gaumjobesebisTvis:
kadrebis SerCevis Tu gaTavisuflebisas TviTmmarTvelobaTa saqmianoba unda iyos maqsimalurad gamWvirvale da obieqturi. nepotizmis SemTxvevebis gamovlenisas Sesabamisi organoebis mxridan
drouli reagireba unda xdebodes;
ix. 2014 wels saqarTvelos sajaro dawesebulebebSi TanamSromelTa ganTavisuflebis statistikuri analizi.
informaciis Tavisuflebis ganviTarebis instituti. 25 noemberi 2015 weli. xelmisawvdomia aq: https://idfi.ge/ge/statistical-analysis-of-dismissal-of-employees-from-various-public-institutions-in-2014 [ukanasknelad gadamowmda 2016 wlis 17 aprils].
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ix. magaliTad, nepotizmis niSnebi Cxorowyus municipalitetSi. saerTaSoriso gamWvirvaloba _ saqarTvelo.
2014 wlis 10 seqtemberi. xelmisawvdomia aq: http://www.transparency.ge/blog/nepotizmis-nishnebi-chkhorotsqus-munitsipalitetshi;
agreTve, siZe, colis biZaSvili, naTlulis mama yvarlis gamgeblis naTesavebi Tanamdebobebze. kaxeTis sainformacio centri. 2014 wlis 7 agvisto. xelmisawvdomia aq: http://ick.ge/articles/19052-i.html; uzenaesi sasamarTlo sajaro samsaxurebSi patronymuri urTierTobebis winaaRmdeg. kaxeTis sainformacio centri. 2014 wlis 18 noemberi. xelmisawvdomia aq: http://ick.ge/articles/20139-i.html [bmulebi ukanasknelad gadamowmda 2016 wlis 21 Tebervals].
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adgilobrivi TviTmmarTvelobis kodeqsi. muxli 156.
4
2014 wlis TviTmmarTvelobis arCevnebis Semdeg aWaris municipalur a(a)ipebSi ganxorcielebuli cvlilebebis
mimoxilva. saerTaSoriso gamWvirvaloba _ saqarTvelo. 2016 wlis 3 Tebervali. xelmisawvdomia aq: http://www.
transparency.ge/blog/2014-tslis-tvitmmartvelobis-archevnebis-shemdeg-acharis-munitsipalur-aaipebshi-gankhortsielebuli-tsvlilebebis-mimokhilva [ukanasknelad gadamowmda 2016 wlis 21 Tebervals].
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8. TviTmmarTvelobis arCevnebi
dadebiT gadawyvetilebad unda Sefasdes merebis da gamgeblebis pirdapiri wesiT arCeva, rac xels
uwyobs adgilobriv doneze demokratiul mmarTvelobas. 50%-iani barieris daweseba arCeuli piris maRal legitimacias uzrunvelyofs. aseve dadebiTi cvlilebaa proporciuli wesiT arCeuli deputatebis raodenobis gazrda TviTmmarTvel TemSi da proporciuli sistemis Semcirebuli barieri, rac warmomadgenlobiT organoSi met pluralizms Seuwyobs xels.1
miuxedavad dadebiTi cvlilebebisa, xazi unda gaesvas im arsebiT problemur Temebs, romlebic ver
mogvarda reformis Sedegad. upirveles yovlisa es ukavSirdeba saarCevno sistemis daxvewas. ramdenadac ukanaskneli reformis farglebSi ar ganxorcielebula arsebiTi cvlileba municipalitetebis samoqmedo teritoriebTan dakavSirebiT, Sesabamisad, ar momxdara saarCevno sistemis reformac. aseve
aRsaniSnavia, rom teritoriuli optimizaciis procesi, romelic sakmaod neli tempebiT mimdinareobs
eWvis qveS ayenebs saarCevno sistemis 2017 wlisTvis Secvlis SesaZleblobas. TviTmmarTvelobis reformis gvian ganxorcieleba TavisTavad niSnavs, rom saarCevno reformisaTvis, romelic Zalian did
resurss da amomrCevelTa informirebis vrcel kampanias saWiroebs, sakmarisi dro ar darCeba.
problemuria administraciuli resursebis gamoyenebis Temac, romelTagan unda gamoiyos TviTmmarTveli organoebis TanamSromelTa saagitacio procesSi CarTva da municipalur biujetSi iseTi
proeqtebis dagegmva, romelTa ganxorcieleba saarCevno periods emTxveva.2
TviTmmarTvelobis reformis erT-erTi dadebiTi monapovari _ merisa da gamgeblis pirdapiri wesiT arCeva dakninebulia maTTvis undoblobis gamocxadebis SesaZleblobiT. aRniSnuli SeiZleba politikuri angariSsworebis instrumenti gaxdes da sazogadoebis umravlesobis arCevanis winaaRmdeg iyos
gamoyenebuli.
ix. 2014 wlis adgilobrivi TviTmmarTvelobis organoebis arCevnebis monitoringis saboloo angariSi. samarTliani arCevenebisa da demokratiis saerTaSoriso sazogadoeba. 2014w. xelmisawvdomia aq: http://www.isfed.ge/
main/777/geo/ [ukanasknelad gadamowmda 2016 wlis 27 Tebervals].
agreTve arasamTavrobo organizaciebi winasaarCevno garemos afaseben: 2014 wlis adgilobrivi TviTmmarTvelobis arCevnebi. 2014 wlis 14 ivnisi. xelmisawvdomia aq: http://www.transparency.ge/post/press-release/tsinasaarchevno-garemos-shefaseba-2014-tvitmmartvelobis-archevnebi [ukanasknelad gadamowmda 2016 wlis 27 Tebervals].
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ix. 2014 wlis adgilobrivi TviTmmarTvelobis organoebis arCevnebis monitoringis saboloo angariSi. samarTliani arCevnebisa da demokratiis saerTaSoriso sazogadoeba. 2014w. xelmisawvdomia aq: http://www.isfed.ge/main/777/
geo/ [ukanasknelad gadamowmda 2016 wlis 27 Tebervals].
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