2024 Communication on EU Enlargement Policy (extract about Georgia)

The European Council granted candidate status to Georgia in December 2023, on the understanding that the nine steps set out in the Commission recommendation of 8 November 2023 are taken. The government prepared a dedicated action plan to carry out the nine steps and expressed its commitment to advance on EU-related reforms. However, as of March 2024, there have been concerning developments that do not reflect the government’s stated commitment to the EU path. These include the decision to resuscitate the Law on transparency of foreign influence and its adoption on 28 May, and the adoption on 17 September of the legislative package on family values and protection of minors. Building on its Conclusions of 27 June, on 17 October 2024 the European Council reiterated its serious concern regarding the course of action taken by the Georgian government, which runs counter to the values and principles upon which the EU is founded. The European Council recalled that such a course of action jeopardises Georgia’s European path, and de facto halts the accession process.

On 26 October, Georgian citizens voted in the parliamentary elections. The preliminary findings of the joint International Election Observation Mission led by the OSCE Office for Democratic Institutions and Human Rights (OSCE/ODIHR) identified several shortcomings that occurred in a tense and highly polarised environment. The reported weaknesses include i.a. the recent legislative amendments to the election process, frequent compromises on vote secrecy, procedural inconsistencies, intimidation and pressure on voters that negatively impacted public trust in the process. These preliminary findings confirm the need for a comprehensive electoral reform that was already highlighted in past key recommendations.

Conclusions and recommendations

The granting of candidate status to Georgia in December 2023 has not been followed by sufficient political commitment of the authorities to implement the necessary reforms for the country’s progress on the EU path.

On the contrary, significant negative developments, including the adoption of the Law on transparency of foreign influence and the legislative package on “family values and the protection of minors”, as well as strong anti-EU narratives from Georgian officials have severely affected Georgia’s EU trajectory. As a consequence, Georgia’s accession process has de facto been halted. Georgia also made insignificant progress on the implementation of the nine steps set by the 2023 Enlargement Communication of the European Commission.

On 26 October, Georgian citizens voted in the parliamentary elections. The preliminary findings of the joint International Election Observation Mission led by the OSCE Office for Democratic Institutions and Human Rights (OSCE/ODIHR) identified several shortcomings that occurred in a tense and highly polarised environment. The reported weaknesses include i.a. the recent legislative amendments to the election process, frequent compromises on vote secrecy, procedural inconsistencies, intimidation and pressure on voters that negatively impacted public trust in the process. These preliminary findings confirm the need for a comprehensive electoral reform that was already highlighted in past key recommendations. The recommendations of the final OSCE/ODIHR report should be implemented as soon as possible.

Constructive and inclusive dialogue across the political spectrum is now paramount. In line with the European Council Conclusions of 17 October, the EU calls on Georgia to adopt democratic, comprehensive and sustainable reforms, in line with the core principles of European integration.

Georgia needs to revert to the implementation of the nine steps as a matter of priority. In addition, Georgia should repeal the Law on transparency of foreign influence, the legislative package on “family values and the protection of minors”, and refrain from other activities undermining the rule of law and fundamental rights that remain an integral part of the EU-Georgia relationship. Georgia should also resume efforts to achieve gender equality. Georgia’s alignment with the EU’s common foreign and security policy remains low, and while it made efforts to restrict the circumvention of sanctions via its territory, Georgia has not aligned with EU sanctions packages against Russia and Belarus.

Moreover, the authorities need to stop spreading disinformation against EU values and instead step up actions to combat disinformation and tackle hostile political rhetoric. Authorities must ensure that attacks against media outlets, opposition parties and civil society activists are properly investigated and a conducive environment for their work is guaranteed. Comprehensive and meaningful steps in reforming the rule of law, tackling high-level corruption, and eliminating oligarchic influences need to be undertaken, allowing sufficient public and Parliamentary oversight over the work of law enforcement agencies and guaranteeing the independence of public institutions.

The EU remains committed to further deepen the partnership with Georgia in line with the aspiration of a large majority of the Georgian population. Unless Georgia reverts the current course of action which jeopardises its EU path, and demonstrates tangible efforts to address outstanding concerns and key reforms, the Commission will not be in a position to consider recommending opening negotiations with Georgia.

Full text of 2024 Communication on EU Enlargement Policy