REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL Fourth progress report on Georgia’s implementation of the action plan on visa liberalisation
Date: 2015-12-18
Institutions: Directorate-General for Migration and Home Affairs, European Commission
Subjects: EU visa policy, Georgia, application of the law, biometrics, border control, fight against crime, fundamental rights, judicial cooperation, migration control, right of asylum

EUROPEAN 
COMMISSION 

Brussels, 18.12.2015  
COM(2015) 684 final 

REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND 
THE COUNCIL 

Fourth progress report on Georgia’s implementation of the action plan on visa 
liberalisation 

{SWD(2015) 299 final} 

EN 

   EN 

 
 
 
 
  
 
1. INTRODUCTION 

The  EU-Georgia  Visa  Liberalisation  Dialogue  was  launched  in  June  2012.  In  February 
2013, the European Commission presented the Georgian Government with an action plan on 
visa liberalisation (VLAP). The VLAP sets a series of precise benchmarks for four 'blocks'1 of 
technically  relevant  issues,  with  a  view  to  adopting  a  legislative,  policy  and  institutional 
framework (phase 1) and ensuring its effective and sustainable implementation (phase 2). The 
benchmarks need to be met before Georgian nationals holding biometric passports can enter 
the Schengen area for short stays without applying for a visa.2 

In  November  2013,  the  Commission  adopted  its  first  progress  report  on  Georgia’s 
implementation  of  the  VLAP3  and  made  several  recommendations  for  completing  the  first 
(legislative  and  planning)  phase.  In  October  2014,  the  Commission  adopted  its  second 
progress report,4 which concluded that Georgia had fulfilled the first-phase benchmarks of 
the VLAP and was ready to be assessed on the second-phase benchmarks. In its conclusions 
of 17 November 2014, the Council concurred with the Commission’s assessment. The report 
was accompanied by an assessment of the potential migratory and security impacts of future 
visa liberalisation for Georgian citizens travelling to the EU.  

In  December  2014,  Georgia  submitted  an  updated  progress  report.  Evaluation  of  all  four 
blocks  of  the  VLAP  took  place  from  December  2014  to  March  2015  under  the  lead  of  the 
Commission, during mission visits involving experts from EU Member States, assisted by the 
Commission,  the  European  External  Action  Service  (EEAS)  and  the  EU  Delegation  to 
Georgia.  The  Commission  adopted 
third  progress  report  on  Georgia's 
the 
implementation of the VLAP on 8 May 2015.5 The report took note of significant progress 
made  by  the  Georgian  authorities  in  implementing  the  second  phase  of  the  VLAP  and 
acknowledged the fulfilment of many benchmarks under the four blocks. 

However it also pointed out that several issues still needed to be addressed in the following 
areas:  migration  management,  asylum  policy,  trafficking  in  human  beings,  fight  against 
corruption, money laundering, drugs, law enforcement and citizens' rights.  

This is the fourth progress report on Georgia’s implementation of the VLAP. It looks at how 
the  Georgian  authorities  have  addressed  the  recommendations  of  the  third  progress 
report in relation to the remaining VLAP benchmarks. This report does not elaborate on 
those  benchmarks  that  were  considered  as  already  achieved  in  the  last  report  because 
monitoring has demonstrated that they are continuing to be fulfilled.   

The  factual  information  and  assessment  are  based  on  the  findings  of  the  EU  evaluation 
missions that took place in Georgia in the week of 28 September to 2 October 2015 in four 

1  These  are:  (i)  document  security,  including  biometrics;  (ii)  integrated  border  management,  migration 
management and asylum; (iii) public order and security; (iv) external relations and fundamental rights. 
2 Beneficiaries of the visa waiver holding a biometric passport could transit through or stay in the territory of the 
EU Member States (except for the United Kingdom and Ireland) and Schengen associated States for a duration 
of no more than 90 days in any 180 days period without applying for a visa. 
3 COM(2013) 808 final. 
4 COM(2014) 681 final. 
5 COM(2015) 103 final. 

2 

 
 
 
 
 
 
 
 
                                                            
areas  (migration  management,  asylum,  fight  against  corruption  and  trafficking  in  human 
beings),  which 
involved  experts  from  EU  Member  States,  Commission  officials, 
representatives  of  the  EEAS  and  the  EU  Delegation  to  Georgia.  Additional  information  on 
these  four  areas  and  on  the  other  remaining  benchmarks  was  obtained  through  subsequent 
meetings  and  communications  between  the  Commission,  the  EEAS  and  the  Georgian 
authorities,  as  well  as  the  progress  reports  submitted  by  Georgia  on  17  August  and  22 
October 2015.  

This  report  is  accompanied  by  a  Commission  staff  working  document6  which  provides 
more  detailed  background  information  on  the  developments  under  each  benchmark.  In  the 
annex  to  the  staff  working  document,  the  Commission  provides  an  updated  factual  analysis 
and  statistics-based  information  on  the  possible  migratory  and  security  impacts  of  visa 
liberalisation  for  Georgian  citizens  travelling  to  the  EU,  based  on  inputs  from  relevant  EU 
agencies  and  stakeholders.  The  assessment  of  impact  gives  prospective  main  trends  in 
migration  and  security  areas.  It  shows  that  the  EU  remains  an  attractive  destination  for 
migrants  from  Georgia  and  that  there  are  potential  migratory  and  security  challenges  to  be 
monitored.   

2.  ASSESSMENT  OF  MEASURES  UNDER  THE  REMAINING  BENCHMARKS  OF 
THE ACTION PLAN ON VISA LIBERALISATION 

2.1. Block 1: Document security, including biometrics 

This benchmark,  which  was deemed to have been achieved in the third progress report, has 
remained achieved. 

2.2. Block 2: Integrated border management, migration management and asylum 

2.2.1.  Integrated border management 

This benchmark,  which  was deemed to have been achieved in the third progress report, has 
remained achieved. 

2.2.2.  Migration management 

The migration management benchmark was deemed to have been almost achieved in the 
third progress report and measurable progress has been made in the meantime to address the 
Commission's recommendations. 

The risk analysis concept developed by the Ministry of Internal Affairs has been expanded 
to include all migration fields. A working group established within the State Commission on 
Migration  Issues  finalised  in  September  2015  a  new  comprehensive  Concept  of  Migration 
Risk Analysis System. Seven state agencies will be involved in compiling analytical reports. 
The collection of data from different state agencies on immigration, emigration and internal 
migration will be ensured through the Unified Migration Analytical System. The EU and the 
Government of Georgia have been co-financing the introduction of this set of electronic tools, 

6 SWD(2015)299 final. 

3 

 
 
 
 
 
 
 
 
 
 
 
 
                                                            
which should be  tested  by mid-2016. All these  products will support Georgia in identifying 
risks, forecasting threats and establishing adequate measures, thereby managing migration in a 
comprehensive manner. 

The Ministry of Internally Displaced Persons from the Occupied Territories, Accommodation 
and Refugees (MRA) is responsible for the coordination of reintegration activities, which 
have  been  redesigned  within  the  framework  of  the  2016-2020  Migration  Strategy.  The 
Government of Georgia is gradually taking ownership of the reintegration assistance process. 
It  established  a  state  reintegration  programme  in  2015,  financed  from  the  State  budget,  and 
will take over the Mobility Centres once an EU-funded project, financed from the European 
Neighbourhood  Instrument  (ENI),  is  phased  out.  In  line  with  the  2016-2020  Migration 
Strategy, sustainable funding and enhanced capacity will ensure that the Mobility Centres can 
independently provide various reintegration services. A new analytical department within the 
MRA  will  establish  an  analytical  reporting  system  to  collect  data  on  the  overall  number  of 
returnees, as well as information on their qualifications and needs for reintegration.  

In  the  period  between  July  and  December  2015  Georgia  implemented  a  comprehensive 
information and communication action plan on the VLAP and a future visa-free regime. 
Meetings,  training  and  other  events  held  in  Tbilisi  and  in  the  regions  involved  more  than 
25.000  Georgian  citizens.  Various  support  media  are  being  used  to  disseminate  the 
information, ranging from leaflets to video clips and social network info-graphic applications 
on rights and obligations surrounding visa liberalisation. These activities will continue under 
the  '2014-2017  EU  Integration  and  Communication  Strategy'  and  the  '2016-2020  Migration 
Strategy'. 

Georgia  has  implemented  in  a  satisfactory  manner  the  actions  recommended  in  the  third 
progress  report.  The  migration  management  benchmark  is  deemed  to  have  been 
achieved. 

2.2.3.  Asylum policy 

The asylum benchmark was deemed to have been partially achieved in the third progress 
report and measurable progress has been made in the meantime to address the Commission's 
recommendations. 

The  legislative  framework  was  amended  to  explicitly  include  asylum  seekers  as  a  category 
that  would  qualify  for  a  visa  on  humanitarian  grounds.  The  implementation  process  has 
already started.   

MRA,  the  Ministry  responsible  for  determining  refugee  status,  adopted  procedural  quality 
indicators to monitor the quality of decision-making on asylum applications. The quality of a 
personal interview is now being assessed by means of its recording.  

Considerable efforts have been made to reduce the backlog in the handling of cases. MRA 
has  developed  an  efficient  strategy  with  clear  country  of  origin  guidelines  and  instructions 
enabling  caseworkers  to  specialise.  Without  compromising  on  quality,  the  backlog  was 
reduced from 1.174 pending cases in March 2015 to a normal workload of approximately 200 
cases in October 2015. A contingency planning mechanism has been established to deal with 

4 

 
 
 
 
 
 
 
 
 
 
any massive influx of asylum seekers and a committee will be set up to decide on additional 
human and financial resources needed to cope with any further backlog of cases.   

To  address  the  high  number  of  rejected  refugee  status  applications  based  on  undisclosed 
security  concerns,  Article  25  of  the  'Law  on  Refugee  and  Humanitarian  status'  has  been 
amended.  The  new  provision  specifies  the  grounds  on  which  an  application  can  be 
rejected for state security purposes and obliges the State Security Agency to provide MRA 
with minimum information about the asylum seekers’ potential threat to state security. 

Staff involved in the determination of the refugee status participated  in numerous external 
and  internal  training  courses.  The  new  Quality  Control  and  Training  Unit  set  up  within 
MRA will be in charge of developing the national training programme. 

The  introduction  in  Georgia  of  a  new  database  containing  country  of  origin  information 
(COI) as well as access to other countries' similar databases will help to provide high-quality 
and up-to-date information. Furthermore, caseworkers have been briefed on basic principles 
of  COI  and  an  amendment  to  the  legislative  framework  now  clearly  distinguishes  between 
COI and policy products. 

The deadline for appealing a negative decision on refugee status has been extended from 
10 to 15 days, whereas the time limit for each court instance to deliver judgments has been 
shortened to two months.    

To ensure that the right to appeal against a negative decision can be effectively used, the state 
sponsored  system  of  free  legal  aid  has  been  extended  to  asylum  seekers.  From  1  January 
2016, they will have access to qualified  staff and free legal assistance and representation in 
court. 

The  ordinary  procedure  for  acquiring  Georgian  citizenship  requires  knowledge  of  the 
Georgian language, knowledge of history and of basic principles of law. A special educational 
programme  has  been  developed  for  refugees  to  help  them  to  access  the  naturalisation 
procedure in practice. 

Building  on  the  considerable  progress  already  made  by  Georgia  on  integrating  foreign 
citizens, the 2016-2020 Migration Strategy has set ambitious objectives in this field. The 
accompanying  action  plan  will  identify  the  financial  needs  for  carrying  out  the  planned 
activities.    

Georgia  has  implemented  in  a  satisfactory  manner  the  actions  recommended  in  the  third 
progress report. The asylum policy benchmark is deemed to have been achieved. 

2.3. Block 3: Public order and security 

2.3.1.  Preventing and fighting organised crime, terrorism and corruption 

2.3.1.1. Preventing and fighting organised crime 

This benchmark,  which  was deemed to have been achieved in the third progress report, has 
remained achieved. 

5 

 
 
 
 
 
 
 
 
 
 
 
 
 
2.3.1.2. Trafficking in human beings 

The trafficking in human beings benchmark was deemed to have been partially achieved 
in  the  third  progress  report  and  measurable  progress  has  been  made  in  the  meantime  to 
address the Commission's recommendations.  

The  provision  of  services  in  the  two  victim  shelters  has  been  reviewed  so  as  to  be  more 
suited to children. Additional staff has been recruited to take care of minors who are victims 
of  trafficking  and  children  accompanying  their  parents,  who  also  benefit  from  individual 
rehabilitation plans.  

To increase the cost-efficiency of the State Fund, the services offered in the shelters will be 
available on a flexible basis, depending on the needs of the victims. A new offer form lists 
all available services under the State Fund and will help in identifying why a service has been 
refused. 

Georgia  has  taken  significant  steps  to  fight  labour  trafficking.  A  Labour  Conditions 
Inspection  Department  was  created  in  2015  within  the  Ministry  of  Labour,  Health  and 
Social  Affairs,  whose  inspectors  have  already  visited  75  companies.  Currently,  labour 
inspectors can enter companies if they have a probable cause on trafficking in human beings 
(THB),  labour  exploitation  or  forced  labour  but  the  department  does  not  have  the  power  to 
impose sanctions. 

The Ministry of Internal Affairs stepped up intelligence-led investigations into all forms of 
exploitation. Out of 17 investigations led between January and September 2015, 11 were the 
result of a proactive approach. 

To secure the testimony of buyers of trafficked women, the Criminal Code was amended to 
allow for the non-prosecution of those who cooperated with the police in the investigation and 
prosecution of traffickers.  

The  collection  of  data  on  victims,  witnesses  and  suspected  traffickers,  as  well  as  other 
relevant information, is now centralised in a single database. All key agencies may access 
and share this information. 

The  existence  of  two  separate  hotlines  for  victims  of  trafficking,  one  operated  by  the 
Ministry of Internal Affairs, and another by the State Fund, is justified by the fact that some 
persons may wish to receive assistance without necessarily cooperating with law enforcement 
authorities. 

Partnerships  with  countries  identified  by  Europol  as  key  destinations  and  sources  of 
trafficking  have  been  enhanced  with  the  allocation  of  police  attachés  and  mutual  legal 
assistance. 

Georgia  has  implemented  in  a  satisfactory  manner  the  actions  recommended  in  the  third 
progress  report.  The  trafficking  in  human  beings  benchmark  is  deemed  to  have  been 
achieved. 

6 

 
 
 
 
 
 
 
 
 
 
 
 
 
2.3.1.3. Preventing and fighting corruption 

The anti-corruption benchmark was deemed to have been partially achieved in the third 
progress  report  and  measurable  progress  has  been  made  in  the  meantime  to  address  the 
Commission's recommendations. 

On  28  October  2015,  the  Parliament  adopted  the  'Law  on  Civil  Service'  along  with  a 
package  of  46  secondary  laws.  The  respective  legal  acts  will  enter  into  force  on  1  January 
2017.  One  of  the  aims  is  to  depoliticise  the  civil  service.  Additional  safeguards  for  the 
independence  of  appointment  and  dismissal  of  the  head  of  the  Civil  Service  Bureau  (CSB) 
have been introduced. 

On  28  October  2015,  the  Parliament  adopted  amendments  in  third  reading  to  the  'Law  on 
Conflict  of  Interests  and  Corruption  in  Public  Service',  which  establishes  the  legal  basis  for 
monitoring asset declarations and authorises the CSB to implement the monitoring process. 
The system of asset disclosure will entail new mechanisms for the detection and sanctioning 
of conflicts of interest and unjustified wealth. Based on those amendments, declarations will 
be monitored in the following three cases: (a) constant verification of the declarations of top-
level officials exposed to high risks of corruption; (b) by random selection of declarations in a 
transparent  manner  through  the  electronic  system  based  on  specific  risk  criteria  by  the 
Independent  Commission;  (c)  on  the  basis  of  well-founded  written  complaints/information 
submitted to the CSB. 

Amendments  to  the  'Law  on  State  Procurement',  which  introduce  criteria  for  dispensing 
with a tendering process for public procurement contracts, entered into force on 1 November 
2015.  The  new  provisions  spell  out  the  criteria  for  awarding  a  contract  through  simplified 
procurement  and  require  the  agreement  of  the  State  Procurement  Agency.  Applications  for 
simplified  procurement  are  in  the  public  domain  and  all  interested  parties  are  entitled  to 
express their considerations. 

The  protection  of  whistle-blowers  has  been  addressed  in  amendments  which  expand  the 
status  and  the  system  of  reporting  of  whistle-blowers.  Accordingly,  any  person  may  be 
regarded as a whistle-blower, whether or not she/he is a public servant. The provisions allow 
both anonymous and confidential whistleblowing.  

The  authorities  continued  to  work  towards  full  implementation  of  the  GRECO 
recommendations. 

Georgia  has  implemented  in  a  satisfactory  manner  the  actions  recommended  in  the  third 
progress  report.  The  preventing  and  fighting  corruption  benchmark  is  deemed  to  have 
been achieved. 

2.3.1.4. Money laundering and financing of terrorism 

The money laundering benchmark was deemed to have been almost achieved in the third 
progress  report  and  measurable  progress  has  been  made  in  the  meantime  to  address  the 
Commission's recommendations. 

7 

 
 
 
 
 
 
 
 
 
 
In  July  2015,  the  Georgian  Parliament  adopted  several  amendments  to  strengthen  its 
legislative  framework  for  cross-border  cash  movements.  The  scope  of  the  declaration 
system for cross-border cash movements has been broadened. In addition to cash physically 
carried  by  natural  and  legal  persons,  cash  sent  and  received  by  post  and  freight  is  now 
covered. Should a person fail to comply with the declaration obligation, she/he will have to 
pay a higher fine than before. To strengthen their deterrent effect, the sanctions are no longer 
limited to a maximum amount of GEL 3.000. Under the new provisions of the Tax Code, the 
penalty  can  equal  10%  of  the  amount  transported  if  it  has  a  total  value  of  GEL  100.000  or 
above. 

The  Chief  Prosecutor  adopted  a  Recommendation  to  increase  the  effectiveness  of 
confiscation of criminal assets. Among other measures to be implemented in the course of 
criminal proceedings, prosecutors and investigators have been instructed to trace every asset 
of the defendant and her/his close relatives, as well as to ensure confiscation even in the case 
of a plea bargain agreement. Various training courses and roundtable meetings were organised 
to discuss these issues with law enforcement bodies and prosecutors.  

The  Financial  Monitoring  Service  has  been  operating  since  2004  as  the  national  centre  for 
receiving, analysing and disseminating suspicious transaction reports. The Service hired two 
new  employees  in  October  2015  and  plans  to  shortly  announce  additional  openings  for  the 
remaining vacancies. 

The National Bank of Georgia supervises all financial institutions except insurance companies 
and  private  pension  schemes.  Its  Methodology  and  Offsite  Inspection  Unit  has  been 
reinforced with the recruitment of six staff members. The Insurance Supervision Authority, 
which  deals  with  insurance  companies  and  private  pension  schemes,  has  created  a  new 
separate offsite monitoring division within the supervision department. 

Recent  awareness-raising  activities  of  the  Financial  Monitoring  Service  were  mainly 
aimed at lawyers. These included training seminars on customer due diligence requirements 
and the development of a guide to the prevention of money-laundering. Future activities will 
also involve accountants and auditors. 

Georgia  has  implemented  in  a  satisfactory  manner  the  actions  recommended  in  the  third 
progress report. The money-laundering benchmark is deemed to have been achieved. 

2.3.1.5. Drugs 

The drugs benchmark was deemed to have been partially achieved in the third progress 
report and measurable progress has been made in the meantime to address the Commission's 
recommendations. 

Georgia has made good progress in implementing its national drug strategy and action plan, 
pursuing  both  demand-reduction  policies  and  supply-reduction  measures.  Article  260  of  the 
Criminal Code has been amended to distinguish between criminal liability for possession 
and distribution of drugs. The maximum penalty for drug possession has been reduced from 
11 years' imprisonment to six years. In practice, since the entry into force of the amendment 
on 31 July 2015, sanctions other than imprisonment have been used in the majority of cases 
decided on the basis of Article 260 for drug possession. 

8 

 
 
 
 
 
 
 
 
 
Georgia's  legislation  provides  sufficient  safeguards  to  protect  individuals  from  arbitrary 
drug testing by the police. Stricter conditions for performing random drug tests were set by 
order  of  the  Minister  of  Internal  Affairs  on  30  September  2015.  Reasonable  grounds  for 
believing that a person has consumed drugs are no longer sufficient and must be accompanied 
by other circumstances to justify an unplanned test. Moreover, the decision to perform a test 
can be challenged before the internal monitoring body of the Ministry of Internal Affairs, an 
administrative court and/or the Prosecutor's Office.  

Georgia  has  implemented  in  a  satisfactory  manner  the  actions  recommended  in  the  third 
progress report. The drugs benchmark is deemed to have been achieved. 

2.3.2. Judicial cooperation in criminal matters 

This benchmark, which was deemed to  have  been achieved in the third progress report, has 
remained achieved. 

2.3.3.  Law enforcement cooperation 

The law enforcement cooperation benchmark was deemed to have been almost achieved 
in  the  third  progress  report  and  measurable  progress  has  been  made  in  the  meantime  to 
address the Commission's recommendations. 

An  intra-agency  working  group  was  established  in  May  2015  to  develop  the  concept  of  a 
unified  risk  analysis  mechanism,  based  on  intelligence-led  policing.  The  concept  was 
approved on 22 October 2015 and the working group began drawing up a detailed action plan 
of  measures  to  be  adopted  for  implementing  the  future  risk  assessment  system.  The 
assessment reports on all-encompassing threats that will be produced on this basis should help 
to determine future crime trends and measures to address them. 

The Ministry of Internal Affairs recently issued and presented to its staff located in Tbilisi and 
in  the  regions  new  instructions  on  existing  resources  and  activities  needed  for 
international  cooperation.  Staff  of  the  Ministry  of  Internal  Affairs  and  the  Chief 
Prosecutor's  Office  received  an  informational  brochure  on  the  existing  cooperation 
mechanisms  through  Interpol  and  joint  training  courses  were  organised  for  investigators  of 
different  services  to  discuss  possibilities  offered  by  the  international  law-enforcement 
cooperation framework.     

Georgia  has  implemented  in  a  satisfactory  manner  the  actions  recommended  in  the  third 
progress  report.  The  law  enforcement  cooperation  benchmark  is  deemed  to  have  been 
achieved. 

2.3.4. Data protection 

This benchmark,  which  was deemed to  have  been achieved in the third progress report, has 
remained achieved. 

2.4. Block 4: External relations and fundamental rights 

9 

 
 
 
 
 
 
 
 
 
 
 
 
 
2.4.1.  Freedom of movement within Georgia 

This benchmark, which was deemed to  have  been achieved in the third progress report, has 
remained achieved. 

2.4.2.  Conditions and procedures for the issuance of travel and identity documents 

This benchmark,  which  was deemed to have been achieved in the third progress report, has 
remained achieved.  

2.4.3.  Citizens’ rights including protection of minorities 

The  citizens’  rights  benchmark  was  deemed  to  have  been  almost  fulfilled  in  the  third 
progress  report  and  measurable  progress  has  been  made  in  the  meantime  to  address  the 
Commission's recommendations. 

Georgia has launched and continues to conduct an information campaign across the country 
and through various media on equality, tolerance and diversity issues under the patronage of 
the  Public  Defender's  Office.  On  17  August  2015,  the  new  Strategy  for  Civic  Equality  and 
Integration was adopted together with an action plan for 2015-2020. It replaces the previous 
strategy  following  a  thorough  performance  assessment  and  a  broad  consultation  with  key 
stakeholders.  The  State  Inter-Agency  Commission  is  in  charge  of  monitoring  the 
implementation  of  the  strategy  and  the  action  plan,  including  the  results  to  be  achieved  by 
2020.    For  each  of  the  planned  activities,  adequate  funding  is  to  be  provided  by  the  state 
agencies within their areas of competences.  

This  new  strategy  focuses  on  improving  access  of  ethnic  minorities  to  decision-making, 
political  life  and  public  services,  including  by  overcoming  language  barriers.  All  relevant 
ministries and state agencies have made a joint effort to inform communities about their rights 
and to facilitate access to education and preserve their cultural heritage. 

Georgia continued to provide training for legal professionals on citizens' rights, equality and 
non-discrimination issues. Training courses aimed mainly at prosecutors, judges and Ministry 
of  Internal  Affairs  officials  were  prepared  in  cooperation  with  civil  society,  international 
organisations and donors.  

In  2015,  due  consideration  was  given  to  legislative  proposals  submitted  by  the  Public 
Defender's Office. The Human Rights and Civil Integration Committee, as well as the Legal 
Committee of the Georgian Parliament, have supported and worked in a cooperative manner 
on  those  amendments  which  would  require  private  persons  to  provide  the  Public  Defender 
with materials, documents or information necessary for the examination of a case.   

Georgia  has  implemented  in  a  satisfactory  manner  the  actions  recommended  in  the  third 
progress report. The citizens' rights benchmark is deemed to have been achieved. 

3. OVERALL ASSESSMENT AND NEXT STEPS 

10 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
Since  the  launch  of  the  EU-Georgia  Visa  Liberalisation  Dialogue  in  June  2012  and  the 
presentation to the Georgian authorities of the Action Plan on Visa Liberalisation (VLAP) in 
February 2013, the Commission has regularly reported to the European Parliament and to the 
Council  on  the  progress  made  by  Georgia  in  fulfilling  the  benchmarks  identified  under  the 
four blocks of the first and second phase of the VLAP. 

The  Commission  has  also  continued  to  monitor  the  progress  made  by  Georgia  in  relevant 
areas of the VLAP through: 

• 
• 
• 
• 
• 
• 

the Senior Officials Meeting of the EU-Georgia Visa Dialogue; 
the EU-Georgia Joint Visa Facilitation Committee; 
the EU-Georgia Joint Readmission Committee; 
the EU-Georgia Subcommittee on Justice, Freedom and Security; 
the EU-Georgia High-Level Mobility Partnership meeting; and 
the EU-Georgia Human Rights Dialogue. 

In  each  of  these  committees  and  dialogues,  cooperation  between  the  EU  and  Georgia  is 
regularly addressed. At the most recent Visa Facilitation and Readmission Joint Committees 
held on 13 October 2015 in Brussels and attended by representatives of EU Member States, 
the  Commission  noted  that  implementation  of  the  two  agreements  was  very  satisfactory 
overall. 

The EU-Georgia Visa Dialogue has proved to be an important and particularly effective tool 
for  advancing  far-reaching  and  difficult  reforms  in  the  Justice  and  Home  Affairs  area 
and  beyond,  impacting  on  areas  such  as  the  rule  of  law  and  justice  reform.  Beyond  VLAP 
benchmarks,  Georgia  took  further  steps  to  reform  the  Judiciary  as  well  as  the  Prosecutor's 
Office.  These  issues  are  monitored  in  other  dialogue  frameworks,  such  as  the  Association 
Committee  and  the  Association  Council,  and  will  also  be  monitored  in  the  context  of  the 
Association Agenda. 

The  progress  achieved  by  Georgia  over  the  last  three  years  in  all  areas  covered  by  the  four 
blocks  of  the  VLAP  is  steady  and  effective.  It  demonstrates  the  commitment  and  constant 
efforts of the Georgian Government and all state institutions that have made fulfilment of the 
VLAP benchmarks a top national priority. 

Georgia  has  allocated  appropriate  financial  and  human  resources  to  ensure  that  the  reforms 
are  sustainable.  The  EU  is  also  contributing  to  this  process,  notably  through  its  EUR  16 
million programme for 'Capacity Building in Support of Border Management and Migration 
Management'. In addition, the 'Human Rights for all in Georgia' programme helps to promote 
protection  of  minorities  and  vulnerable  groups,  strengthen  capacities  of  the  Personal  Data 
Protection  Inspector  and  establish  effective  functioning  of  labour  administration.  The 
continuous  implementation  of  the  VLAP  reforms  will  also  be  supported  by  the  upcoming 
Technical  Cooperation  Facility,  which  will  cover  migration  management,  fight  against 
organised crime and combatting domestic violence. All this EU assistance is funded from the 
European Neighbourhood Instrument (ENI).  

Comprehensive  information  campaigns  have  been  run,  aiming  to  clarify  the  rights  and 
obligations  surrounding  visa-free  travel.  Further  activities  are  planned  in  the  run-up  to  and 

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after  visa  liberalisation,  under  the  '2014-2017  EU  Integration  and  Communication  Strategy' 
and the '2016-2020 Migration Strategy'.  

Three  progress  reports  on  the  implementation  of  the  VLAP  have  been  presented.  The  third 
report  confirmed  that  Georgia  was  broadly  in  line  with  all  the  benchmarks  set  in  the  four 
blocks of the VLAP and identified actions that, if taken, would ensure Georgia's fulfilment of 
all benchmarks for the second phase of the VLAP. 

The  Commission  considers  that  since  then  Georgia  has  made  the  necessary  progress  and 
undertaken  all  the  required  reforms  to  ensure  effective  and  sustainable  achievement  of  the 
remaining  benchmarks.  All  the  measures  identified  in  the  third  progress  report  have  been 
taken.  The  legislative  and  policy  framework,  the  institutional  and  organisational  principles, 
and the implementation of procedures throughout the four blocks comply with European and 
international standards. 

Based on this assessment, and given the outcome of the continuous monitoring and reporting 
carried out since the launch of the EU-Georgia Visa Liberalisation Dialogue in June 2012, the 
Commission considers that Georgia meets all the benchmarks set in respect of the four 
blocks of the second phase of the VLAP. Taking into account overall relations between the 
EU  and  Georgia,  the  Commission  will  present,  early  2016,  a  legislative  proposal  to  amend 
Regulation (EC) No 539/2001. 

The Commission will continue actively to monitor Georgia's continuous implementation 
of  all  benchmarks  under  the  four  blocks  of  the  VLAP  through  the  existing  association 
structures and dialogues, and, if necessary, through ad hoc follow-up mechanisms. 

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