giorgi asatasvili saqartvelos parlamentis qutaissi

197

giorgi asaTaSvili

saqarTvelos parlamentis quTaisSi gadatana

– nabiji regionalizmisaken Tu ubralod

adgilsamyoflis cvlileba

giorgi asaTaSvili

ivane javaxiSvilis saxelobis

Tbilisis saxelmwifo universitetis

me-3 kursis studenti.

abstraqti

2012 wlis saqarTvelos saparlamento arCevnebis Sedegebis gamocxadebis Semdeg Za-

laSi Sevida sakonstitucio cvlileba, romlis Tanaxmadac, saqarTvelos parlamentis

plenaruli sxdomebis Catarebis adgilad ganisazRvra qalaqi quTaisi. dRes parlamenti

marTlac funqcionirebs quTaisSi, Tumca deputatTa mniSvnelovan nawils aqvs mosa-

zreba, rom parlamenti isev TbilisSi unda dabrundes. cnobilia, rom msoflioSi arse-

bobs iseTi qveynebi, romelTa parlamentebi, mTavrobebi, prezidentis aparatebi an sasa-

marTloebi sxvadasxva qalaqebSi mdebareoben da funqcionireben. zogjer aseT qalaqebs

dedaqalaqis statusi aqvT, xolo Tu ara aqvT maSin maT defaqto dedaqalaqebs uwo-

deben. Cemi mizania gamovarkvio, Tu ra miznebi an mizezebi aqvs msoflios qveynebis mier

xelisuflebis StoTa amgvar teritoriul gadanawilebas da xom ar aqvs amas erTgvari

decentralizaciis funqcia? aseve Sevecdebi ganvmarto decentralizaciis arsi da ganv-

sazRvro, ramdenadaa SesaZlebeli decentralizaciaze saubari parlamentis, mTavrobis,

prezidentis aparatis an sasamarTlos sxvadasxva qalaqSi ganTavsebisas.

SedarebiT-samarTlebriv safuZvelze kargad gamoCndeba, ramdenad aris quTaisis par-

lamentis adgilmdebareobis cvlileba saqarTveloSi decentralizaciis wina piroba da

rogori statusi unda hqondes quTaiss. aseve mizanSewonilia Tu ara saqarTvelos par-

lamentis kvlav TbilisSi gadmotana. qarTuli konstituciuri samarTali aqamde ar ic-

nobda xelisuflebis StoTa teritoriul gadanawilebas da am cvlilebiT faqtobrivad

axali midgoma dainerga qarTul sakonstitucio samarTalSi. am sakiTxTan dakavSirebiT

qarTul sazogadoebaSic azrTa sxvadasxvaobaa. Tumca mimaCnia rom parlamentis adgil-

198

giorgi asaTaSvili

mdebareobasTan dakavSirebuli problemis ganxilva samarTlebriv WrilSi arc ise xSi-

rad xdeba da Cemi msjelobiT SevZleb garkveuli mniSvnelobis samarTlebrivi daskvnebi

gavakeTo. saqarTvelos konstitucias qarTuli sazogadoebis cxovrebisaTvis arc Tu ise

mcire mniSvneloba aqvs, gansakuTrebiT imas eqceva yuradReba, Tu rogor sruldeba am

kanonis debulebebi realur cxovrebaSi. zemoT ganxiluli cvlileba marTlac ganxor-

cielda da parlamenti dRes quTaisSi funqcionirebs, Tumca arsebobs argumentacia imis

Sesaxeb, rom konstituciis Canaweri unda Seicvalos. sainteresoa ra aris am cvlilebis

ganxorcielebis samarTlebrivi safuZveli. is, rom parlamentis quTaisSi gadatana ufro

did xarjebTanaa dakavSirebuli mTlad Rirebul samarTlebriv argumentad ver Cai-

Tvleba. maS ratom warmoiSva msgavsi problema? me aseve Sevecdebi am kiTxvaze pasuxis

gacemasac.

bolo xanebSi saqarTvelos konstituciam mravali cvlileba ganicada. Tumca mizani

erTia, rom qarTvel xalxs unda hqondes iseTi konstitucia, romelic iqneba demokra-

tiuli da progresuli. aris Tu ara parlamentis adgilmdebareobis cvlileba nabiji

demokratiisa da progresisaken, Tu es mxolod fasaduri movlenaa da arafers cvlis

qveynis winsvlisa da ganviTarebis gzaze? swored am sakiTxs Seexeba Cemi msjelobis bolo

nawili, ramdenad progresuli movlenaa parlamentis adgilmdebareobis cvlileba.

Sesavali

saqarTvelos konstituciaSi 2009 wlis 24 seqtembers Sevida cvlileba, kerZod,

konstitucias daemata 481 muxli, romlis mixedviTac, saqarTvelos parlamentis adgil-

samyoflad ganisazRvra qalaqebi – Tbilisi da quTaisi, xolo 2011 wlis 1 ivliss moxda

am cvlilebis modificireba da parlamentis adgilsamyofeli gaxda mxolod qalaqi qu-

Taisi. es muxli ZalaSi Sevida saqarTvelos centraluri saarCevno komisiis mier 2012

wlis saparlamento arCevnebis Semajamebeli oqmis gamoqveynebis Semdeg. saqarTvelos

parlamenti amJamad funqcionirebs qalaq quTaisSi, Tumca saparlamento umravlesobis

mier SemuSavebulia kanonproeqti, romelic konstituciidan 481 muxlis amoRebas iTva-

liswinebs.

saqarTvelos uaxles istorias Tu gadavxedavT, Tbilisi mudmivad iyo ekonomikuri,

kulturuli da politikuri centri. Cveni qveynis mier sabWoTa kavSirisagan damoukide-

blobis mopovebis Semdeg misi roli kidev ufro gaizarda, Tumca sxva qalaqebis aqtivoba

metismetad Semcirda. swored regionebis rolis gazrdisa da xelisuflebis danawilebis

principisaTvis regionalizmis elementebis miniWebis mizniT iyo gamarTlebuli parla-

199

saqarTvelos parlamentis quTaisSi gadatana – nabiji regionalizmisaken Tu ubralod adgilsamyoflis cvlileba

mentis quTaisSi gadatana1. cnobilia, rom msoflios sxva qveynebSic arsebobs praqtika,

rodesac saxelmwifo organoebi sxvadasxva qalaqSia ganlagebuli. ratom iReben saxelm-

wifoebi aseT gadawyvetilebas? unda gamoiyenos Tu ara saqarTvelom msgavsi midgoma da

ras moutans Cvens samSoblos amgvari teritoriuli gadanawileba? amavdroulad, unda

Sefasdes, amarTlebs Tu ara parlamentis quTaisSi gadatana im miznebs, rac lokalur

doneze saqarTvelos xelisuflebas gaaCnda amgvari gadawyvetilebis miRebisas. mxed-

velobidan ar unda gamogvrCes axali kanonproeqti, romlis daniSnulebac konstitu-

ciidan 481 muxlis amoRebaa. sainteresoa, ram ganapiroba xelisuflebaSi saparlamento

umravlesobiT mosuli axali politikuri Zalis mier amgvari cvlilebis momzadeba da

ra argumentacia arsebobs am kanonproeqtis mxardasaWerad? saboloo jamSi, unda dad-

gindes: ramdenad Seuwyobs xels parlamentis quTaisSi gadatana saqarTvelos samomavlo

ekonomikur winsvlas, daaCqarebs Tu ara qveynis progress demokratiis ganviTarebis

kuTxiT. aseve mniSvnelovania parlamentis TbilisSi dabrunebis sakiTxi.

qveynebi ramdenime dedaqalaqiT

msoflios saxelmwifoTa umravlesobas erTi dedaqalaqi aqvs, romelSic mdebareobs

xelisuflebis yvela organo. Zlier mcirea im saxelmwifoTa CamonaTvali, romelTac

ramdenime qalaqSi moaxdines xelisuflebis StoTa teritoriuli gadanawileba. aseTi

qveynebis ricxvs miekuTvnebian: Cile, benini, bolivia, svazilendi da samxreT afrikis

respublika2. saqarTvelos parlamentis adgilmdebareobis cvlilebis mxardasaWer ar-

gumentebad 2009 welsve3, moyvanil iqna niderlandebis magaliTi, romlis mixedviTac,

parlamentis adgilsamyofeli dedaqalaq amsterdamSi ki ara, qalaq haagaSia. aRiniSna,

rom SveicariaSi 1999 wels parlamentis sxdomebi tardeboda q. JenevaSi, xolo 2001

wels – luganoSi. xazi gaesva samxreT afrikis, Cilesa da filipinebis gamocdilebasac

da maT motivacias, maqsimalurad izrunon qveynis yvela regionis Tanabar ganviTarebaze

da Sida ekonomikur-politikur procesebSi srulad CarTulobaze.

1 ixileT 2011 wlis saqarTvelos konstituciuri kanonis «saqarTvelos konstituciaSi damatebis Setanis Sesaxeb saqarTvelos konstituciur kanonSi cvlilebis Setanis Taobaze» kanonproeqtis ganmartebiTi baraTi. wyaro: https://matsne.gov.ge/index.php?option=com_ldmssearch&view=docView&id=1331150.2 http://geography.about.com/od/politicalgeography/a/multiplecapital.htm.3 saubaria 2009 wlis saqarTvelos konstituciuri kanonis „saqarTvelos konstituciaSi damatebis Setanis Sesaxeb“ kanonproeqtis ganmartebiT baraTze, romelic konstituciaSi parlamentis adgilsamyoflad adgenda rogorc Tbiliss, ise quTaiss. wyaro: http://www.parliament.ge/newsletter/2009/21.07.2009/drafts/konst1.htm.

200

giorgi asaTaSvili

samxreT afrikis respublika da sqarTvelo

miuxedavad sxva qveynebis magaliTisa, mimaCnia, rom yvelaze saintereso da gamosadegi

saqarTvelosTvis samxreT afrikis magaliTia. samxreT afrikis respublika sakmaod gan-

viTarebuli da demokratiuli qveyanaa, Tanac sami dedaqalaqi aqvs, romelTagan erTSi

ganTavsebulia sakanonmdeblo xelisufleba, meoreSi sasamarTlo da mesameSi aRmasrule-

beli. es qalaqebia: keiptauni, blumfonteini da pretoria4. amgvari gadanawileba exmiane-

ba qarTul realobasac, radgan amJamad saqarTvelos mTavroba da uzenaesi sasamarTlo

TbilisSi funqcionirebs, sakonstitucio sasamarTlo baTumSi mdebareobs, xolo saka-

nonmdeblo organo quTaisSia ganTavsebuli. iseve rogorc saqarTvelos konstitucia,

samxreT afrikis konstituciac Seicavs Canawers parlamentis adgilmdebareobis Sesaxeb5.

qveynebs Soris aris gansxvavebac, radgan, rogorc aRiniSna, samxreT afrikis am qalaqebs

dedaqalaqebis statusi aqvT, xolo saqarTveloSi dedaqalaqis statusiT mxolod Tbi-

lisi sargeblobs. sxva qveynebs rac Seexeba, maTi umetesoba saqarTvelos sakmaod Camou-

vardeba demokratiulobisa da ganviTrebis xarisxiT. xolo niderlandebis dedaqalaq

amsterdamSi saerTod ar funqcionirebs saxelisuflo organoebi da maTi adgilsamyo-

feli haagaSia.

samxreT afrikis respublikis politikur-ekonomikuri cxovreba, istoria da kultura

bevrad gansxvavdeba qarTuli realobisgan. miuxedavad amisa, ar iqneboda urigo, Tu

gavecnobodiT samxreT afrikis sakmaod mdidar gamocdilebas da im Sedegebs, rac xeli-

suflebis organoTa teritoriulma gadanawilebam gamoiwvia.

samxreT afrikis respublikis saxelmwifo organoTa teritoriuli gadanawileba

jer kidev 1909 wels samxreT afrikis aqtiT ganisazRvra samxreT afrikis respubli-

kis sami dedaqalaqis sakiTxi: mTavrobis adgilsamyoflad dadginda qalaqi pretoria,

parlamentis – keiptauni da sasamarTlosi – blumfonteini.

rogorc vxedavT, saxelmwifo organoTa sxvadasxva qalaqSi ganTavsebis mxriv samxreT

afrika Tavis kurss uryevad inarCunebs. magram 1990 wlidan samxreT afrikaSi poli-

4 Simon Bekkerand/ Göran Therborn, Power and Powerlessness Capital Cities In Africa, South African capital cities, 2012, 168. samxreT afrikis sakonstitucio sasamarTlo qalaq iohanesburgSi mdebareobs, xolo danarCeni sasamarTlo organoebi dedaqalaq blumfonteinSi. ase rom, am mxrivac pirdapiri msgavsebaa saqarTvelosTan.5 CONSTITUTION OF THE REPUBLIC OF SOUTH AFRICA, CHAPTER 4 PARLIAMENT, 42) Composition of Parliament,(6).

201


tikosTa garkveuli wreebi mxars uWerdnen saparlamento dedaqalaq keiptaunisaTvis

statusis CamorTmevas. saqme imaSi gaxldaT, rom dasavleT keipis provinciis qalaqebSi

mcxovrebTa umravlesoba ar warmoadgenda mkvidr mosaxleobas da ZirZveli afrikelebi

umciresobas Seadgendnen. amitomac, wminda afrikuli warmomavlobis moqalaqeebis mi-

marT mtrul damokidebulebas didi gasaqani hqonda. Seqmnili viTareba demokratiisTvis

sazianod iqna miCneuli da keiptaunisaTvis dedaqalaqis statusis CamorTmevis sakiTxic

aqtualuri gaxda. miuxedavad amisa, cvlileba mainc ar ganxorcielda, radgan samxreT

afrikelebma am rTuli situaciidan gamosavali mxolod parlamentis adgilmdebareobis

SenarCunebaSi dainaxes. swored parlaments unda moexdina gavlena qalaqze, raTa igi

yofiliyo namdvili afrikuli qalaqi da ZirZveli mosaxleoba ar daCagruliyo6.

me-20 da 21-e saukuneebis gasayarze samxreT afrikis qalaq iohanesburgis centralur

raionebSi metad problemur sakiTxs warmoadgenda kriminalis maRali done da qaoturi,

ukontrolo viTareba. qalaqis centris mdgomareobis gamosasworeblad Camoyalibda spe-

cialuri proeqti, romlis farglebSi provinciul da municipalur doneze Seqmnilma

saagentoebma daiwyes qalaqis centris ganaxleba. am proeqtis dasaCqareblad ki demo-

kratiuli, axlad Seqmnili nacionaluri xelisuflebis instituti, sakonstitucio sasa-

marTlo gamoiyenes7.

samxreT afrikis magaliTi cxadyofs, rom saxelmwifo organoTa daniSnuleba ara mxo-

lod mmarTvelobiTi saqmianobis ganxorcieleba SeiZleba iyos, aramed im konkretul

regionsa Tu qalaqze dadebiTi zegavlenis moxdenac, romelSic isini mdebareoben. dasa-

vleT keipis provinciaSi warmoSobili problemebis gadaWris gzad swored parlamen-

tis adgilsamyofeli iqna miCneuli. igive ganmeorda iohanesburgSic da dRes situacia

gamosworebulia. radgan samxreT afrika eTnikurad mravalferovani qveyanaa, misi socia-

luri garemos specifikuri maxasiaTeblebis Seswavla arc Tu ise advilia, Sesabamisad,

rTulia imis Tqma, namdvilad saxelmwifo organoebis mdebareobam ganapiroba Tu ara

raime pozitiuri cvlileba. Tumca naTelia, rom amas arc uaryofiTi Sedegi moutania.

samxreT afrikis warmatebuli gamocdileba ver iqneba imis garanti, rom saxelisuflo

institutis dedaqalaqidan gadatana saqarTveloSic gaamarTlebs. unda ganisazRvros

sasargebloa Tu ara amgvari cvlilebebi Cveni qveynisaTvis. risTvisac kargi iqneboda,

Tu Sefasdeboda is miznebi da mizezebi, rac parlamentis quTaisSi gadatanis ganmapiro-

bebeli faqtori gaxda.

6 Simon Bekkerand/Göran Therborn, Power and Powerlessness Capital Cities In Africa, South African capital cities, 2012, 175.7 iqve, 176.

202

giorgi asaTaSvili

ganmartebiTi baraTi

rogorc aRiniSna konstituciis Canaweri, parlamentis quTaisSi gadatanasTan dakav-

SirebiT, orjer Seicvala. pirveli Canaweris mixedviT, parlaments Tavisi uflebamo-

sileba unda ganexorcielebina Tbilissa da quTaisSi, xolo bolo Canaweris Tanaxmad,

parlamentis adgilsamyofeli mxolod qalaqi quTaisi gaxda. „saqarTvelos konstitu-

ciaSi damatebis Setanis Sesaxeb saqarTvelos konstituciur kanonSi cvlilebis Setanis

Taobaze“ kanonproeqtis ganmartebiT baraTSi mocemulia quTaisSi parlamentis gadata-

nis miznebi. es kanonproeqti Seiqmna, rom parlamentis adgilsamyofeli mxolod qalaqi

quTaisi gamxdariyo. ganmartebiT baraTSi kanonproeqtis miznebi asea gadmocemuli: „ka-

nonproeqtis mizania rogorc xelisuflebis samarTliani danawilebis principisTvis re-

gionalizmis elementebis miniWeba – politikur-ekonomikur procesebSi regionebis ro-

lis gazrda, aseve saqarTvelos uZvelesi istoriul-kulturuli memkvidreobis centris

– quTaisis rolis metad warmoCineba, misi statusis amaRleba da dasavleT saqarTvelos

mosaxleobis politikur procesebSi ufro aqtiuri CarTva. amasTan, sakanonmdeblo aq-

tivobis mxolod erT qalaqSi koncentrireba xels Seuwyobs sakanonmdeblo saqmianobis

srulyofilebas da stabilurobas, dedaqalaqsa da regionebs Soris politikuri, ekono-

mikuri, socialuri da kulturuli damokidebulebis balanss, parlamentis rolis gazr-

das, kanonis pativiscemis ganmtkicebas, dasavleT saqarTveloSi sajarosamarTlebrivi

momsaxurebis xarisxis da administraciuli resursis gaumjobesebas, transportisa da

infrastruqturis ganviTarebas, sainvesticio sferos gafarToebas“.

ganmartebiTi baraTis analizisas ikveTeba, rom xelisuflebas surda quTaisSi parla-

mentis gadataniT saqarTveloSi Seeqmna Tbilisis alternatiuli politikur-ekonomiku-

ri centri, romelic, dedaqalaqs gauwevda konkurencias da met SesaZleblobas gauCenda

dasavleT saqarTvelos mkvidrT. ganxorcieldeba ki parlamentis quTaisSi gadataniT es

mizani? amis gasarkvevad cal-calke unda Sefasdes im miznebis ganxorcielebis SesaZle-

bloba, romelic ganmartebiT baraTSia dafiqsirebuli.

regionalizmi da misi elementebi

Tavdapirvelad ganmartebiT baraTSi gvxvdeba saintereso fraza – «xelisuflebis sa-

marTliani danawilebis principisTvis regionalizmis elementebis miniWeba» – gasagebia,

rom parlamentma unda uzrunvelyos regionalizmis gaZliereba dasavleT saqarTveloSi,

magram regionalizmis romeli elementebi unda vigulisxmoT? zogadad regionalizmi

farTo terminia da sakmaod bevri elementi aqvs. am konkretul SemTxvevaSi ganxilvis

203


sagani Sidasaxelmwifoebrivi regionalizmis institutia, romelic gulisxmobs regioni-

saTvis meti avtonomiurobis miniWebas da qveyanaSi mmarTvelobiTi sistemis gaumjobese-

bas8. regionalizmi SeiZleba gamoixatos politikuri procesebis gamWvirvalobisa da am

procesebSi farTo CarTulobis uzrunvelyofaSi, politikuri sistemis integraciaSi,

konfliqtebis mowesrigebasa Tu qveynis regionebs Soris uTanasworobis aRmofxvraSi.

regionalizmi aseve xasiaTdeba decentralizaciiTa da dekoncentraciiT9.

decentralizacia

qarTveli politikosebisgan xSirad ismoda gancxadebebi, rom quTaisSi parlamentis

gadatanas xeli unda Seewyo decentralizaciisaTvis. decentralizacia marTlac aris

regionalizmis Semadgeneli elementi. decentralizacia viwro gagebiT qveynis SigniT

TviTmmarTveli administraciul-teritoriuli erTeulebis Seqmnas gulisxmobs, rom-

lebic isargebleben administraciuli avtonomiiT xelisuflebis mimarT (xelisufle-

baTa vertikaluri danawileba)10. decentralizacia farTo gagebiT moicavs dekoncentra-

ciasac11. zogjer dekoncentracias administraciul decentralizacias uwodeben da am

terminSi moiazreben ufelbamosilebebis gazrdas centraluri xelisuflebisadmi daq-

vemdebarebuli teritoriuli organoebisaTvis (samxareo da adgilobrivi organoebi)12.

miuxedavad amisa, iuridiul literaturSi arsebobs gansxvavebuli mosazreba, romlis

mixedviTac. dekoncentraciisa da decentralizaciis centrebi erTmaneTisagan mkacrad

unda gaimijnos13.

kanonproeqtis ganmartebiTi baraTis miznebSi namdvilad ar fiqsirdeba TviTmmarT-

veli erTeulebisaTvis meti avtonomiurobis miniWebis mizani, Sesabamisad, miswrafeba

viwro gagebiT decentralizaciisaken. Tumca zogierTi konstitucionalisti am cvlile-

bis ganxorcielebis miznebs pirdapir ukavSirebs saxelisuflebo funqciebis vertikalur

danawilebas adgilobrivi TviTmmarTvelobis organoebsa da centralur xelisuflebas

Soris14. miuxedavad imisa, rom decentralizacia viwro da farTo gagebiT regionaliz-

8 g. xubua, federalizmi, rogorc normatiuli principi da politikuri wesrigi, saia, Tbilisi, 2000,66.9 iqve,63-64. SedarebisTvis ixileT: JOHN P. LEDONNE REGIONALISM AND CONSTITUTIONAL REFORM 1819-1826, Cahiers du Monde russe, 43/4, Avril-septembre 2003, 5.10 avTandil demetraSvili/irakli kobaxiZe, konstituciuri samarTali, Tbilisi, 2010,370-371.11 Ian Ferguson/Cherukat Chandrasekharan, Paths and Pitfalls of Decentralisation for Sustainable Forest Management: Experiences of the Asia-Pacific Region,ITTO Tropical Forest Update 14/3 2004, 3.12 Federal Ministry for Economic Cooperation and Development, Decentralisation and local self-government, Decentralisation in German development cooperation, 4. ixileT aseve: http://www.cifor.org/publications/pdf_files/interlaken/Compilation.pdf13 avTandil demetraSvili/irakli kobaxiZe, konstituciuri samarTali, Tbilisi, 2010,370-371.14 daviT wereTeli, Tbilisi, 2013 wlis 23 ianvari. wyaro: http://constitution.ge/statiebi/daviT-wereTeli/.

204

giorgi asaTaSvili

mis Semadgeneli elementia, parlamentis quTaisSi gadatana saerTod ar isaxavda miznad

TviTmmarTvel erTeulebsa da centralur xelisuflebas Soris kompetenciaTa gadanawi-

lebas. „politikur-ekonomikur procesebSi regionebis rolis gazrda“ zogadi mizania

da ver iqneba viwro gagebiT decentralizaciisaken miswrafeba. am mizans ufro metad

Seesabameba dekoncentraciis instituti, romelic xelisuflebisadmi daqvemdebarebu-

li regionaluri organoebis gaZlierebas emsaxureba. swored amitom, saubari decen-

tralizaciaze parlamentis adgilmdebareobasTan mimarTebiT, SeiZleba mxolod zogad

konteqstSi warimarTos da moicavdes mxolod decentralizacias farTo gagebiT. Tu

decentralizaciisagan termin dekoncentracias gavmijnavT, maSin decentralizacia par-

lamentis adgilmdebareobasTan mimarTebiT saerTod aRar unda gamoviyenoT.

regionebis rolis gazrda da parlamentis adgilsamyofeli

politikur-ekonomikuri procesebis dinamika TbilisSi gacilebiT farTo da Zlieria

vidre saqarTvelos sxva regionebSi. amas adasturebs, magaliTad, Tbilisis mosaxleobis

raodenoba, romelic mudmivad izrdeba regionebis xarjze da 2012 wlis monacemebiT,

saqarTveloSi mcxovrebTa raodenobis meoTxeds Seadgens15. imave daskvnis gamotana SeiZ-

leba ganmartebiTi baraTidanac, romelic quTaisSi parlamentis gadatanas saqarTvelos

regionebis gamococxleba-gaaqtiurebas ukavSirebs. problemis arseboba naTelia, magram,

ramdenad gazrdis parlamentis adgilmdebareobis cvlileba dasavleT saqarTvelos re-

gionebis CarTulobas politikur-ekonomikur procesebSi? samxreT afrikis magaliTma

cxadyo, rom es SesaZlebelia, magram saqarTvelo gansxvavebuli specifikiT xasiaTdeba,

amitomac misi magaliTi mosalodneli Sedegebis srul prognozs ver mogvcems. pasuxi

unda veZeboT saqarTvelos parlamentis funqciebSi, rac dadgenilia saqarTvelos

konstituciiT. saqarTvelos konstituciis 48-e muxlis Tanaxmad, parlamenti axorcie-

lebs rogorc sakanonmdeblo xelisuflebas, ise gansazRvravs qveynis saSinao da sagareo

politikis ZiriTad mimarTulebebs. rogorc vxedavT, swored parlamentia is organo,

romelic qveyanaSi politikuri procesebis mwarmoeblad miiCneva. ar unda dagvaviwydes

konstituciis is debulebebic, romlebic 2013 wlidan Sedis ZalaSi da saqarTvelos

parlaments, prezidentis xarjze, sagrZnoblad uzrdis uflebamosilebebs. 2013 wlis

Semdeg parlamenti xdeba mTavrobis makontrolebeli erTaderTi organo, rac mis rols

prezidentis institutze mniSvnelovans xdis. am situaciis fonze parlamenti marTlac

gamoacocxlebs dasavleT saqarTvelos regionebs. im adgilas, sadac maRali dinamikiT

mimdinareobs politikuri procesebi da xorcieldeba qveynis mTavrobaze kontroli,

15 http://geostat.ge/cms/site_images/_files/georgian/population/01%20saqarTvelos%20mosaxleobis%20ricxovnoba%20TviTmmarTve-li%20erTeulebis%20mixedviT%20%281%20ianvris%20mdgomareobiT%29%29.xls.

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aqtivoba regionuli masStabiT namdvilad gaizrdeba. am politikuri institutis ad-

gilmdebareoba aseve xels Seuwyobs stabilurobis gancdas, rac ekonomikur procesebis

aRmasvlasac gamoiwvevs. Tumca parlamentis quTaisSi gadatanam SesaZloa mokle droSi

verc moitanos navaraudevi Sedegebi da amas didi dro dasWirdes, magram garkveuli

progresi regionebis gaaqtiurebis mxriv mainc mosalodnelia.

quTaisis statusi da misi ganviTareba

rogorc ganmartebiTi baraTidan Cans parlamentis quTaisSi gadatana TviT am qalaqis

statusis amaRlebas da misi rolis gazrdas emsaxureba. konstituciis CanaweriT mxo-

lod parlamentis adgilsamyofelia gansazRvruli da quTaisis statuss igi ar adgens.

msoflioSi damkvidrebuli praqtikiT, parlamenti TiTqmis yovelTvis dedaqalaqSi fun-

qcionirebs, ase rom, SesaZloa quTaisma meore dedaqalaqis statusi SeiZinos. Tumca

statusis cvlileba politikur gadawyvetilebazea damokidebuli da mocemul momentSi

am Temaze saubari marTebuli ver iqneba. rac Seexeba quTaisis rolis gazrdas, aq Ziri-

Tadad unda vigulisxmoT quTaisis politikur-ekonomikuri aRmavloba da misi ganviTa-

reba. arsebobs mosazreba16, rom xsenebuli cvlileba quTaisis ganviTarebas didad ver

Seuwyobs xels da saxelmwifos mier am mimarTulebiT daxarjul saxsrebsa da Semosavals

Soris disproporcia fiqsirdeba. Tavisi poziciis mxardasaWerad avtori argumentad

iSveliebs baTumSi sakonstitucio sasamarTlos gadatanis magaliTs da acxadebs, rom am

qmedebasac qalaq baTumis ganviTarebis mizani hqonda. Sesabamisad, kanonmdebels unda

daesabuTebina, Tu ra gavlena iqonia baTumze sakonstitucio sasamarTlos gadatanam da,

radgan man es ar daasabuTa, quTaisis ganviTarebis konkretuli xedvac ar arsebobs. jer

unda momxdariyo imis dadgena, Tu ra iqneboda qalaqis ganviTarebis Sedegad miRebuli

mogeba da mxolod amis Semdeg SeiZleboda parlamentis quTaisSi gadatana.

saxelmwifos mier gatarebuli politika mizanmimarTuli da kompleqsuri unda iyos.

baTumis SemTxvevaSi swored amgvar politikasTan gvaqs saqme. erTi mxriv, baTumSi gada-

vida saxelmwifo mniSvnelobis organo – sakonstitucio sasamarTlo da, meore mxriv,

seriozuli fuladi investiciebi Caido mis ganviTarebaSi. mxolod sakonstitucio sa-

samarTlos gadataniT SesaZloa baTumis ganviTareba saerTodac ver daCqarebuliyo,

magram amas mohyva uaxlesi iusticiis saxlis gaxsna, axali sastumroebis mSenebloba da

sxva Tanamedrove sakurorto infrastruqturis ganviTareba. quTaisSi parlamentis ga-

datanac aseTive pirobebSi ganxorcielda. quTaisSi ganTavsda mniSvnelovani saxelmwifo

organoebi, magaliTad kontrolis palata, mniSvnelovnad Seicvala qalaqis iersaxe.

16 zurab jibRaSvili, wyaro: http://constitution.ge/statiebi/zurab jibRaSvili/.

206

giorgi asaTaSvili

quTaisis parlamentSi gadatanis sakiTxi ver iqneba mxolod viwro finansur xedvebze

damyarebuli, es im didi strategiis nawilia, romelic saqarTvelos regionebis gamoco-

cxlebasa da saqveyno cxovrebaSi maTi rolis gazrdas iTvaliswinebs.

rac Seexeba TviT qalaqis aRmavlobas, quTaisis mosaxleobas eZleva SesaZlebloba,

uSualod Caebas qveynisTvis mniSvnelovan politikur procesebSi da moaxdinos gavlena

qveynis sakanonmdeblo organos saqmianobaze. kerZod, politikosTa wreSi (politikosTa

umravlesoba dRes Tbilisidan aris an TbilisTanaa mWidrod dakavSirebuli) male gaci-

lebiT meti quTaiseli aRmoCndeba, vidre dRes aris. es ki TviTon qalaqis aRorZinebasac

uzrunvelyofs. rTulia imis Tqma, Tu ramdenad swrafad moxdeba quTaisSi politikuri

cxovrebis gamococxleba. amgvari midgomis gasaRebi swored parlamentis uflebamosi-

lebania. parlamenti iRebs kanonebs, rac udides gavlenas axdens qveynis yoveldRiur

cxovrebaze. xSiria SemTxveva, rodesac mosaxleoba ikribeba parlamentTan, gamoTqvams

protests an ubralod cdilobs xma miawvdinos parlamentarebs. amgvari situacia xels

uwyobs demokratiis ganviTarebasa da sazogadoebis met CarTulobas kanonSemoqmede-

biT saqmianobaSi. rodesac parlamenti TbilisSi iyo quTaisis mosaxleobas ar hqonda

uSualo Sexeba kanonSemoqmedebiT procesTan, magram Tu parlamenti quTaisSi iqneba misi

mosaxleobis politikuri Segnebis done amaRldeba da demokratiul procesebSi CarTvis

survilic gauZlierdeba. es qalaqi qveynis axali politikuri centri gaxdeba.

saqarTvelos uaxloes istorias Tu gadavxedavT, xelisuflebaze gavlenas ZiriTadad

qalaq Tbilisis mosaxleoba axdenda, radgan swored maTgan gamosuli politikosebi mar-

Tavdnen saqarTvelos. am yvelaferma ki dedaqalaqis ganviTarebaze dadebiTad imoqmeda.

dedaqalaqSi adamianebi uSualod xedavdnen, Tu rogor, ra gziT midioda qveynis ganvi-

Tareba, ra problemebi arsebobda da myisierad axdendnen reagirebas. raionebSi ki pro-

cesebi metismetad nela midioda. axla quTaissac eZleva Sansi, rom misi mcxovreblebi

moxvdnen qveynis mmarTvelobiT struqturebSi, aseTi pirebi ki sakuTari qalaqisaTvis

namdvilad bevrs gaakeTeben.

xelisuflebis StoTa TanamSromloba adgilmdebareobis cvlilebis fonze

parlamentis quTaisSi gadatanis mowinaaRmdegeTa kidev erTi argumenti mdgomareobs

imaSi, rom parlamentsa da mTavrobas Soris garkveuli teritoriuli manZili amcirebs

maT Soris TanamSromlobis efeqturobas. rac, saboloo jamSi. aferxebs saparlamento

207


kontrolis ganxorcielebis process aRmasrulebel xelisuflebaze17. sawinaaRmdego

poziciis mqone pirTa argumenti is aris, rom XXI saukunis saqarTveloSi komunikaciis

sakmaod efeqturi saSualebebi arsebobs da komunikacia problemas ar warmoadgens18.

mimaCnia, rom komunikaciis problema martivad gadaiWreba, Tu TanamSromlobis politi-

kuri neba iarsebebs. es cxadyo samxreT afrikis gamocdilebamac. samxreT afrikam dRemde

SeinarCuna 1909 wlis aqtiT gaTvaliswinebuli teritoriuli mowyoba da yoveli wlis

dasawyisSi, rodesac saparlament o sesiebi iwyeba, pretoriidan keiptaunSi miemgzavreba

politikosebisa Tu sajaro mosamsaxureebis didi raodenoba. bevri parlamentari keip-

taunSi srul gadabargebas, parlamentis sxdomebis periodSi am or qalaqs Soris misvla-

mosvlas arCevs. Tanamedrove teqnologiebis ganviTarebis wyalobiT sahaero mgzavrobas

mxolod ori saaTi miaqvs, Tumca 50 wlis win amgvari gadaadgileba erT dReze met xans

grZeldeboda. miuxedavad amisa, samxreT afrikis mTavrobasa da parlaments adgilmde-

bareoba ar Seucvlia19. Tanamedrove epoqaSi komunikaciis saSualebebi daixvewa, amito-

mac parlamentsa da mTavrobas Soris TanamSromlobas xels veraferi SeuSlis, Tu amas

orive politikuri institutis warmomadgenlebi isurveben.

CamorCenis aRmofxvra ganviTarebaSi

minda yuradReba gavamaxvilo regionalizmis im elementze, romelic ganmartebiT ba-

raTSia asaxuli da qveynis regionebs Soris ganviTarebaSi disbalansis aRmofxvras gu-

lisxmobs. Cemi azriT, swored es aris quTaisSi parlamentis gadatanis umTavresi mizani.

saqme imaSia, rom Tbilisis ekonomikuri winsvla sakmaod SesamCnevia, magram imaves ver

vityviT verc saqarTvelos regionebze20 da verc konkretulad quTaisze21. saqarTvelos

teritoria sakmaod mcirea da sruliad marTebulia, rom mas erTi dedaqalaqi hqondes.

saqarTvelo rom Zlieri iyos da misi politikur – ekonomikuri cxovreba stabilurad

mimdinareobdes, maSin parlamentis gadatana quTaisSi gaumarTlebeli iqneboda. Tumca

dRes viTareba sxvagvaria: Cveni samSoblo ganviTarebadi qveynebis kategorias mieku-

Tvneba, Tanac gayinuli, dauregulirebeli teritoriuli konfliqtebiT, rac misi eko-

17 besik lolaZe, wyaro: http://constitution.ge/statiebi/besik-lolaZe/.18 giorgi mSvenieraZe, wyaro: http://constitution.ge/statiebi/giorgi-mSvenieraZe/.19 Simon Bekkerand/Göran Therborn, Power and Powerlessness Capital Cities In Africa, South African capital cities, 2012, 172-173.20 Ghia Nodia, What ‘Regionalism’Means in the Case of Georgia, Weakness of Internal Regions in Georgia. wyaro: http://www.b2match.eu/securingeurope/system/files/Georgia%20and%20regionalism%2011-07-05.pdf SedarebisTvis ixileT: Göran Therborn, Trans-caucasian Triptych, new left review 46, 2007,18.21 quTaisi mosaxleobis raodenobiT saqarTveloSi sididiT meore qalaqia, magram misi mosaxleobis raodenoba 5-6-jer naklebia dedaqalaqis mosaxleobis raodenobaze. wyaro: http://geostat.ge/cms/site_images/_files/georgian/population/01%20saqarTvelos%20mosaxleobis%20ricxovnoba%20TviTmmarTveli%20erTeulebis%20mixedviT%20%281%20ianvris%20mdgomareobiT%29%29.xls.

208

giorgi asaTaSvili

nomikuri winsvlisTvis sakmaod sazianoa. is, rac saqarTvelosTvis sasargeblo iqneba,

swrafi ganviTarebaa. swored am ganviTarebis xelSesawyobad ganxorcielda parlamentis

adgilmdebareobis cvlileba. Tu parlamentSi quTaisi kvlav darCeba, maSin, rogorc

zemoT aRvniSne, quTaisis ganviTareba Seuqcevadi gaxdeba. Tbilisi saqarTvelos ZirZ-

veli politikur – ekonomikuri centria da arc is daTmobs poziciebs. Sesabamisad,

warmoiSoba konkurencia Tbilissa da quTaiss Soris. swored jansaRi konkurencia aris

is, rac iwvevs ekonomikur winsvlas. saqarTveloSi gaCndeba ori Zlieri politikur-eko-

nomikuri centri dasavleT da aRmosavleT saqarTveloSi, Tanac es moxdeba ara dayofis

da SuRlis gaRvivebiT, aramed qveynis konsolidaciiT da im politikuri institutebis

xarjze, romlebic Tavisi arsiT saxelmwifoebriobis da qveynis erTianobis simboloa.

axali kanonproeqti

parlamenti amJamad quTaisSi funqcionirebs, Tumca deputatTa mier SemuSavebulia ka-

nonproeqti, romlis mixedviTac igegmeba konstituciidan 481 muxlis amoReba22. am cvli-

lebis ganxorcieleba niSnavs imas, rom parlamentis adgilmdebareobis sakiTxi konsti-

tuciis regulirebis sferodan gava.

kanonproeqtis ganmartebiT baraTSi aRniSnulia, rom saqarTvelos konstitucia aqamde

ar Seicavda parlamentis adgilmdebareobis momwesrigebel normas da amgvari midgoma

dResac unda iqnes SenarCunebuli. vinaidan konstitucia saqarTvelos uzenaes kanons

warmoadgens, misi regulireba zogad principebs ar unda gascdes da safuZveli unda

Seiqmnas dabal safexurze mdgomi samarTlebrivi aqtebisaTvis. konstituciaSi parlamen-

tis garda sxva saxelisuflo Stos adgilsamyofeli ar aris dafiqsirebuli da parlamen-

tic ar unda iyos gamonaklisi. am argumentaciis gasamyareblad moyvanilia evrosabWos

qveynebis magaliTi da ganmartebulia, rom am qveynebis konstituciaTa umravlesoba ar

Seicavs parlamentis adgilmdebareobis momwesrigebel normebs.

konstitucionalistTa Soris am kanonproeqtTan dakavSirebiT azrTa sxvadasxvaoba

arsebobs. erTi poziciis23 Tanaxmad, konstitucia ar unda Seicavdes Zalze wvrilman

da detalur normebs. konstitucia zogad principebze unda iyos agebuli da iZleodes

am principebis gaSlis saSualebas kanonmdeblobaSi. parlaments unda mieces saSualeba,

Tavad gadawyvitos, Tu sad ganaxorcielebs igi miniWebul uflebamosilebas. TviT par-

lamentis wevrebma ukeT ician, romel adgilas imuSavebs sakanonmdeblo organo nayofie-

22 kanonproeqti da misi ganmartebiTi baraTi ixileT: https://matsne.gov.ge/index.php?option=com_ldmssearch&view=docView&id=1797338&lang=ge.23 dimitri gegenava, wyaro: http://constitution.ge/statiebi/dimitri-gegenava/.

209


rad. amitomac konstituciaSi parlamentis adgilmdebareobis gansazRvra arapraqtiku-

lia da es sakiTxi unda daregulirdes saqarTvelos parlamentis reglamentiT, romelic

kanonis Zalis mqone samarTlebrivi aqtia.

sapirispiro mosazrebis avtori aRniSnavs24, rom evropuli saxelmwifoebis konsti-

tuciebis did nawilSi marTlac ar aris gawerili parlamentis adgilsamyofeli, Tumca

mxolod es garemoeba ver iqneba konstituciidan 481 muxlis amoRebis safuZveli. is

wers: „kanonproeqtis ganmartebiT baraTSi msgavsi Sinaarsis miTiTeba ufro cvlilebis

ganxorcielebis namdvili mizezis dafarviskenaa mimarTuli, vidre sazogadoebisTvis

misi motivis axsnisaken. rogorc xsenebuli kanonproeqtis ganxilvisas, aseve mis inici-

rebamdec araerTxel gvsmenia, rom aRniSnuli cvlilebis proeqti Seesabameba mmarTveli

politikuri Zalis liderebis dapirebas, parlamentis adgilsamyofelis TbilisSi gada-

tanasTan dakavSirebiT“.

Cemi azriT, xsenebuli kanonproeqti da misi ganmartebiTi baraTi sakmaod bevr kiTx-

vis niSans badebs. qarTuli sazogadoebisTvis saidumlos ar warmoadgens, rom mmarTvel

politikur Zalas namdvilad aqvs parlamentis kvlav TbilisSi dabrunebis survili.

is, rom konstitucia mxolod zogad principebs unda adgendes, marTebuli da gasazia-

rebeli debulebaa. Tumca amas samxreT afrikis respublikis xelisuflebisaTvis xeli

ar SeuSlia (rogorc zemoTac aRvniSne) parlamentis adgilsamyofeli konstituciiT

ganesazRvra. msgavsi Canaweris arseboba namdvilad ar qmnis problemas, gansakuTrebiT

maSin, Tu parlamenti dedaqalaqs tovebs da sxva qalaqSi iwyebs funqcionirebas. ar unda

gamogvrCes isic, rom parlamentis quTaisSi gadatanas gansakuTrebiT didi mniSvneloba

mieniWa, rogorc saqarTveloSi regionalizmis gaZlierebis, ise qveynis ganviTarebisa

da winsvlis mxriv. amitomac parlamentis quTaisSi funqcionirebas saqarTvelosaTvis

strategiuli mniSvneloba aqvs da mis adgilsamyofelsac swored konstitucia unda

aregulirebdes. rac Seexeba imas, rom parlaments ar unda waerTvas ufleba, Tavad gan-

sazRvros sakuTari adgilsamyofeli, parlaments aqvs konstituciis Secvlis uflebamo-

sileba. magram, radganac konstituciis xSiri cvlileba rekomendebuli ar aris, kargi

iqneba, Tu konstituciaSi gaCndeba Canaweri, romlis mixedviTac, parlaments Tavisi aq-

tiT SeeZleba mis adgilsamyoflad sxva qalaqis gamocxadeba. amgvari midgoma arsebobs

samxreT afrikis konstituciaSi: erTi mxriv, konstituciiT parlamentis adgilsamyo-

flad dadgenilia qalaqi keiptauni, magram, meore mxriv, parlaments SeuZlia, Tavisi

aqtiT, adgilsamyoflad sxva adgili daadginos25. rac Seexeba am aqtis misaRebad saWiro

xmebis raodenobas, kvorumis gansazRvra TviTon parlamentis kompetenciaa, Tumca mimaC-

nia, rom aqtis miRebisaTvis maRali kvorumi unda dawesdes.

24 giorgi mSvenieraZe, wyaro: http://constitution.ge/statiebi/giorgi-mSvenieraZe/. 25 CONSTITUTION OF THE REPUBLIC OF SOUTH AFRICA, CHAPTER 4 PARLIAMENT, (42) Composition of Parliament,(6).

210

giorgi asaTaSvili

daskvna

miuxedavad imisa, rom sakanonmdeblo organos adgilmdebareobis cvlileba Rrma

konstituciur-samarTlebriv analizs ar moiTxovs, Cveni qveynisaTvis es sakiTxi mainc

sakmaod mniSvnelovania. konstituciis preambulaSi vkiTxulobT, rom saqarTvelos moqa-

laqeTa uryevi nebaa, daamkvidron demokratiuli sazogadoebrivi weswyobileba, ekono-

mikuri Tavisufleba, socialuri da samarTlebrivi saxelmwifo. Tu saqarTvelos regio-

nebsa da Tbiliss Soris ganviTarebaSi seriozuli disbalansi SenarCundeba, maSin aRar

iqneba gaTvaliswinebuli saqarTvelos moqalaqeTa neba, Seqmnan ekonomikurad Tavisu-

fali da socialuri saxelmwifo. Cveni qveynis sazRvrebi mxolod TbilisiT ar Semoi-

fargleba da regionebmac unda isargeblon zustad imave donis uflebebiT, rogoriTac

Tbilisis mosaxleoba sargeblobs. Tu xelisufleba am process ver SeaCerebs, maSin

demokratiul da ganviTarebul saxelmwifoze laparaki SeuZlebeli gaxdeba. saqarTve-

los konstituciaSi asaxuli principebi realur cxovrebaSi unda iyos gatarebuli da

mxolod qaRaldze ar unda eweros. Cemi azriT, swored konstituciaSi mocemuli prin-

cipebis cxovrebaSi realizebis mizniT ganxorcielda parlamentis quTaisSi gadatana.

parlamentSi mimdinareobs qveynisaTvis strategiuli mniSvnelobis mqone politikuri

procesi da namdvilad aqvs mniSvneloba imas, Tu romel adgilas warimarTeba igi. mso-

flios qveynebis umravlesobis sakanonmdeblo organo dedaqalaqSi funqcionirebs da

saqarTveloc aqamde imave gzas mihyveboda, magram dedaqalaqis mniSvneloba sxva regio-

nebis xarjze imdenad gaizarda, rom parlamentis TbilisSi funqcionirebas dedaqalaqis

statusis mimarT mxolod formaluri datvirTva darCa. imaves ver vityviT quTaisze,

romelic saqarTveloSi sididiT meore qalaqi da dasavleT saqarTvelos istoriuli,

politikur-ekonomikuri centria. misi ganviTareba dedaqalaqisas sagrZnoblad Camor-

Ceba. swored amitom, parlamentis quTaisSi funqcionireba am qalaqze gacilebiT met

gavlenas moaxdens, vidre Tbilisze. Tbilisi parlamentis adgilsamyoflis cvlilebiT

faqtobrivad arafers kargavs, vinaidan saxelisuflo struqturebis didi nawili kvlav

iq rCeba, asec rom ar iyos. Tbilisi saqarTvelos ekonomikuri centricaa da misi ganvi-

Tarebis tempebs namdvilad ver SeaCerebs parlamentis gatana dedaqalaqidan.

saqarTvelos parlamentis adgilsamyofelTan dakavSirebiT konstituciaSi ganxorcie-

lebuli cvlileba sakmaod aqtualuri sakiTxia da mosaxleobaSi azrTa sxvadasxvaobas

iwvevs. miuxedavad amisa, cvlilebasTan dakavSirebiT samarTlebrivi analizi naklebi in-

tensivobiT mimdinareobs. Sevecade, es sakiTxi samarTlebrivi kuTxiT ganmexila da gark-

veuli daskvnebic gavakeTe. moviSvelie msoflios qveynebis gamocdileba xelisuflebis

StoTa teritoriuli gadanawilebis mxriv da gansakuTrebiT gamovkveTe samxreT afrikis

magaliTi, romelsac sami dedaqalaqi aqvs. mniSvnelovania uSualod qarTveli kanonm-

deblis mizani, romelmac quTaisSi parlamentis gadatana regionalizmis gaZlierebas,

quTaisisa da dasavleT saqarTvelos ganviTarebas daukavSira. mxedvelobidan ar gamomr-

Cenia axlaxan inicirebuli kanonproeqti, romelic konstituciidan parlamentis adgil-

211


samyoflis Sesaxeb regulaciis amoRebas iTvaliswinebs. am kanonproeqtTan dakavSirebiT

warmovadgine rogorc gansxvavebuli mosazrebani, ise Cemi pozicia. Sevecade yuradRe-

bis miRma ar damrCenoda da ganxilvis gareSe ar dametovebina wamoWrili problemebi.

msurda, rom Cemi naSromi ar yofiliyo metismetad mSrali, viwro samarTlebrivi kvleva.

mimaCnia, rom mkiTxvels Cemi statia daainteresebs da SesaZleblobas miscems, ukeT gaaa-

nalizos parlamentis adgilsamyofelTan dakavSirebuli sakiTxi. sabolood, SeiZleba

iTqvas, rom parlamentis quTaisSi gadatana metia, vidre adgilsamyoflis cvlileba da

is swored regionalizmis waxalisebas emsaxureba.

giorgi asatasvili saqartvelos parlamentis qutaissi

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