demokratiuli auditi rusTavis municipalitetSi

Sesavali

saqarTvelos konkretul qalaqSi adgilobrivi TviTmmarTvelobis organos

funqcionirebisa da demokratiuli auditis sistemis daxasiaTeba

mniSvnelovan meTodologiur problemebTan aris dakavSirebuli. es

ganpirobebulia imiT, rom saqarTveloSi adgilobrivi TviTmmarTvelobis

sistema da misi dinamika metad bundovania, ris gamoc daxasiaTebasa da

aRweras saWiroebs.

winamdebare proeqtis farglebSi Sefasebis obieqti iyo adgilobrivi

mmarTvelobis organoebis sazogadoebasTan urTierTobis formebis

efeqturoba.

aRniSnuli sakiTxis Seswavla arasamTavrobo organizaciebis mier adrec

mimdinareobda. am mxriv aRsaniSnavia saqarTvelos gaeros asociaciisa da

rusTavis samoqalaqo ganaTlebis centris mier bolo wlebSi

ganxorcielebuli saqmianoba. aRniSnulma samuSaoebma saSualeba mogvca,

Segveqmna demokratiuli auditis procesebis ganviTarebis sruli suraTi da

gamogveyo ganviTarebis tendenciebi.

sakiTxis Seswavlis mizniT Cven mier Catarebul gamokiTxvaSi CarTulni

iyvnen adgilobrivi mmarTvelobis organoebis - meriisa da sakrebulos

(qalaqis sabWos), aseve masmediisa da arasamTavrobo organizaciebis

warmomadgenlebi. kvlevis pirvel etapze municipalitetis TanamSromlebs

daurigdaT kiTxvarebi. gamokiTxvis Sedegad miRebuli informaciis

Sesavsebad da dasazusteblad Catarda sakiTxze orientirebuli

interviuebi. SefasebisTvis gamoyenebuli iqna agreTve beWdviTi informacia -

gazeTebi, arasamTavrobo organizaciebis biuletenebi.

Sefasebis mizani iyo, warmoeCina adgilobrivi mmarTvelobis organoebSi

sazogadoebasTan urTierTobis da informaciis gamWvirvalobis kuTxiT

arsebuli mdgomareoba. miRebuli informaciis safuZvelze SemuSavda mTeli

rigi rekomendaciebi.

adgilobrivi mmarTvelobis organoebSi sazogadoebasTan urTierTobis

meqanizmebis efeqturobis da informaciis sajaroobis uzrunvelyofis

SefasebisaTvis gamoiyo Semdegi sferoebi:

arsebuli sistemis analizi: sakiTxis istoria, kanonmdebloba,

struqtura, yoveldRiuri saqmianobis formebi, ZiriTadi problemebi;

ekonomika: municipaluri qoneba, finansebi, biujeti;

yoveldRiuri praqtika: moxeleTa rekrutireba, gadawyvetilebis miRebis

procesi, moxeleTa momzadebis done, procedurebi;

interesTa jgufebi - steikholderebi: politikuri partiebi, masmedia,

arasamTavrobo organizaciebi;

2

marTvis procesSi sazogadoebis CarTulobis xarisxi:

warmomadgenlobiToba, gamWvirvaloba, angariSvaldebuleba, sazogadoebis

ganwyoba. sazogadoebis gaaqtiurebis precedenti.

1. arsebuli sistema

a. TviTmmarTvelobis sistemis formireba da sakanonmdeblo baza

saqarTveloSi mTeli istoriis manZilze adgilobrivi arCevnebi oTxjer

Catarda:

1919 wels - saqarTvelos demokratiuli respublikis (1918-1921)

arsebobis periodSi;

1991 wels – pirvelad saqarTvelos mier damoukideblobis aRdgenis

Semdeg;

1998 wels – saxelmwifo gadatrialebis, politikuri qaosisa da

TviTmmarTvelobis sferoSi arsebuli 6 wliani iuridiuli vakuumis Semdeg

1997 wels miRebuli "adgilobrivi TviTmmarTvelobisa da mmarTvelobis

Sesaxeb" saqarTvelos organuli kanonis safuZvelze;

2002 wels, Secvlili kanonmdeblobis pirobebSi, rodesac Tavi iCina

sazogadoebis gaaqtiurebis procesma da im tendenciebma, ramac 2003 wlis

noemberSi qveyana usisxlo revoluciamde miiyvana.

1998-2001 wlebSi saqarTveloSi Camoyalibda sami tipis adgilobrivi

erTeulebi:

1. adgilobrivi TviTmmarTvelobis organoebi, romlebic Camoyalibda

raionis SemadgenlobaSi Semaval soflebSi, TemebSi, dabebsa da qalaqebSi

(e.w. pirveli done). aq proporciuli partiuli wesiT moxda

adgilobrivi warmomadgenlobiTi organos, sakrebulos, arCevnebi.

aRmasrulebeli xelisuflebis meTauris funqcias asrulebda

sakrebulos Tavmjdomare.

2. adgilobrivi mmarTvelobis organoebi, romlebic Camoyalibda raionebSi

(e.w. meore done). proporciuli partiuli wesiT moxda raionis

adgilobrivi mmarTvelobis warmomadgenlobiTi organobis arCevnebi.

raionis aRmasrulebeli organoebis xelmZRvaneli ki iniSneboda

saqarTvelos prezidentis mier.

3. im qalaqebSi, romlebic ar Sedian raionis SemadgenlobaSi (maTYSoris q.

rusTavi), xelisuflebis organoebi erTdroulad warmoadgendnen

TviTmmarTvelobis da mmarTvelobis organoebs (raionTan gaTanabrebuli

anu meore done). am tipis qalaqis warmomadgenlobiTi organoebis

arCevnebi proporciuli partiuli wesiT moxda. qalaqis aRmasrulebeli

organoebis xelmZRvaneli iniSneboda saqarTvelos prezidentis mier.

"adgilobrivi TviTmmarTvelobisa da mmarTvelobis Sesaxeb" kanonSi

mocemulia adgilobrivi TviTmmarTvelobis uflebamosilebebisa da

adgilobrivi mmarTvelobis organoebis CamonaTvali. im qalaqebis

3

uflebamosilebebi, romlebic ar Sedian raionis SemadgenlobaSi, iyo

adgilobrivi TviTmmarTvelobis da adgilobrivi mmarTvelobis

uflebamosilebaTa erToblioba. kanonSi mkafiod ar aris gamijnuli

aRniSnuli uflebamosilebebi, kerZod, xdeba funqciaTa dublireba;

gaurkvevelia, konkretul sakiTxTan dakavSirebiT ra aris adgilobrivi

TviTmmarTvelobis kompetencia da ra - raionis adgilobrivi

TviTmmarTvelobisa. saboloo jamSi uflebamosilebebTan dakavSirebiT metad

qaosuri viTarebaa Seqmnili.

kanonis mixedviT, adgilobrivi TviTmmarTvelobis organoTa kompetencias

ganekuTvneba:

adgilobrivi TviTmmarTvelobis qonebis floba, sargebloba da gankargva;

adgilobrivi biujetis formireba, damtkiceba, Sesruleba da kontroli;

saqarTvelos kanonis Sesabamisad adgilobrivi gadasaxadebisa da

mosakreblebis SemoReba da gauqmeba;

daqvemdebarebuli teritoriis kompleqsuri socialur-ekonomikuri

ganviTarebis programebis SemuSaveba, damtkiceba da Sesruleba;

adgilobrivi samsaxurebisa da Sesabamisi sawarmoebis Seqmna da

likvidacia;

adgilobrivi sainformacio samsaxuris organizeba da Senaxva; misi

funqcionirebisaTvis xelis Sewyoba;

daqvemdebarebuli teritoriis keTilmowyoba da gamwvaneba;

eleqtroenergiiT, gaziT, wyliT momaragebisa da lokaluri

samelioracio sistemebis organizeba, Senaxva da ganviTareba;

Sida sargeblobis gzebis SekeTeba, rekonstruqcia da mSenebloba;

mosaxleobis samedicino daxmarebis, socialuri dacvisa da dasaqmebis

municipaluri programebis SemuSaveba, damtkiceba da Sesruleba.

formalurad kanonmdeblobiT gansazRvrulia adgilobrivi

TviTmmarTvelobis eqskluziuri uflebamosilebebi da imis samarTlebrivi

garantia, rom es uflebamosilebebi maT damoukideblad ganaxorcielon. es

niSnavs, rom am uflebamosilebebis ganxorcielebisaTvis adgilobrivi

TviTmmarTvelobis organoebs gaaCniaT sruli administraciuli,

momsaxurebiTi, sainvesticio da maregulirebeli uflebamosilebebi.

calke aRniSvnis Rirsia delegirebuli uflebamosilebebi:

samoqalaqo aqtebis registracia;

garemosdacviT, sanitarul da veterinarul RonisZiebaTa ganxorcieleba;

moqalaqeTa samxedro samsaxurSi gawvevis sakiTxebSi adgilobrivi

mmarTvelobis organosaTvis xelis Sewyoba;

skolamdeli aRzrdisa da saganmanaTleblo, kulturisa da sportul-

gamajansaRebeli dawesebulebebis, muzeumebisa da gamofenebis, samusiko

skolebis, biblioTekebis, kinoTeatrebis, saavadmyofoebisa da

poliklinikebis, moxucebulTa, obol da mzrunvelobasmoklebul bavSvTa

4

saxlebis movla-patronoba, maTi mimdinare da kapitaluri xarjebis

dafinanseba.

miuxedavad zemoTqmulisa, realurad TviTmmarTvelobis erT-erT umTavres

nakls sxvadasxva donis xelisuflebebs Soris funqciebis gaumijnaoba

warmoadgens. marTalia, arsebuli sistema ukve 5 welia rac moqmedebs,

magram jer kidev ar aris miRebuli iseTi kanonebi, rogoricaa, magaliTad,

kanonebi adgilobrivi biujetebis, municipaluri sakuTrebisa da

saxelmwifo transfertebis Sesaxeb. aRniSnul sferoebSi urTierToba

regulirdeba prezidentisa da sxvadasxva saministros mier gamocemuli

gankargulebebiT, romlebic xSirad icvleba, xSirad ki ewinaaRmdegeba

moqmed kanonmdeblobasa Tu konstituciur normebs da kanonebTan SedarebiT

aSkara prioritetiT sargeblobs. miRebuli sakanonmdeblo aqtebis

umetesoba aseve xSirad modis winaaRmdegobaSi ara marto erTmaneTTan,

aramed sakuTar TavTanac. xSiria SemTxvevebi, roca erTi kanonis sxvadasxva

muxli ZiriTadad ewinaaRmdegeba erTmaneTs.

adgilobrivi, municipaluri sakuTreba, am sityvis klasikuri gagebiT,

qveyanaSi ar arsebobs. ama Tu im municipalitetis teritoriaze arsebuli

sawarmoebi Tu sxva obieqtebi an privatizebulia, an ormag daqvemdebarebaSi

imyofeba. rogorc wesi, es ukanasknelni centraluri xelisuflebis

romelime struqturas (saministros) da saqarTvelos prezidentis mier

daniSnul adgilobrivi administraciis xelmZRvanels erTdroulad

eqvemdebareba. burusiTaa moculi adgilobrivi Semosavlebisa da gasavlebis

formirebis sakiTxi. adgilobrivi gadasaxadebi, saukeTeso SemTxvevaSi,

municipaluri biujetis 10%-sac ar Seadgens. adgilobrivi biujetebis

Sevseba saerTo saxelmwifo gadasaxadebis adgilze datovebuli nawilisa da

miznobrivi transfertebis xarjze xdeba. rogorc wesi, adgilobrivi

biujetis xarjviTi nawilis 80-90% winaswaraa gansazRvruli centraluri

xelisuflebis mier. bunebrivia, aseT pirobebSi municipaluri sabiujeto

procesis damoukideblobaze saubari azrs kargavs.

gasuli wlebis ganmavlobaSi mravali alternatiuli kanonproeqti

momzadda. am procesSi CarTuli iyo centraluri xelisufleba,

saerTaSoriso Tu arasamTavrobo organizaciebi da eqspertebi.

warmodgenili kanonproeqtebi xSir SemTxvevaSi erTmaneTisagan

kardinalurad gansxvavdeboda. moqmed organul kanonSi cvlilebebisa da

damatebebis Setanis dros (2001 weli) gardamaval debulebebSi

ganisazRvra, rom SemdgomSi calke unda yofiliyo miRebuli kanonebi

adgilobrivi biujetebis, adgilobrivi qonebis da transfertebis Sesaxeb,

rac dRemde ar ganxorcielebula.

b. moqmedi struqtura

kanoniT gansazRvrulia da erTmaneTisgan gamijnulia adgilobrivi

TviTmmarTvelobisa da mmarTvelobis cnebebi. kanonis logikidan

5

gamomdinare, mxolod adgilobrivi TviTmmarTvelobis organoebia

decentralizebuli, raionis adgilobrivi mmarTveloba ki centraluri

xelisuflebis gagrZelebas warmoadgens. im qalaqebSi, romlebic ar Sedian

raionis SemadgenlobaSi (mocemul SemTxvevaSi q.rusTavi), xorcieldeba

adgilobrivi TviTmmarTveloba. adgilobrivi TviTmmarTvelobis rogorc

warmomadgenlobiTi, ise aRmasrulebeli organoebi arCeviTia.

warmomadgenlobiT organos warmoadgens qalaqis sakrebulo, romelic

Sedgeba mravalmandatian sarCevno olqSi 4 wlis vadiT maJoritaruli

wesiT arCeuli 15 wevrisagan.

kanonisa da sakrebulos debulebis mixedviT, sakrebulos struqturuli

erTeulebia: komisiebi, qvekomisiebi, fraqciebi, kolegia.

partiuli TvalsazrisiT, qalaq rusTavis sakrebulos Semadgenloba sakmaod

mravalferovania. masSi warmodgenilia 7 politikuri partia. Seqnilia erTi

fraqcia - "erTiani nacionaluri moZraoba".

unda aRiniSnos, rom genderuli balansis TvalsazrisiT, sakrebuloSi

arasaxarbielo situaciaa. Tu 1998 wlis mowvevis sakrebuloSi 30 wevrs

Soris 2 qali mainc iyo, amJamad sakrebulos wevrebs Soris arcerTi qali

ar aris.

1998 wels sakrebulo proporciuli wesiT airCa. am sakrebulos

saqmianobas gamudmebiT gasdevda partiuli dapirispireba. yvela wamoweuli

sakiTxi partiul Seferilobas iZenda. amitom xSirad ismoda sayveduri,

rom partiuli siiT arCeuli deputatebi ZiriTad energias qalaqis

problemebis mogvarebas ki ar axmardnen, aramed - partiul dapirispirebas.

2002 wlis arCevnebi maJoritaruli wesiT Catarda, Tumca cxadia,

kandidatTa umetesoba kvlav partiebis mier iyo dasaxelebuli.

damoukidebel kandidatTagan mxolod erTi gaxda sakrebulos wevri, isic

SemdgomSi erT-erT partiaSi gawevrianda. aqedan gamomdinare, sakrebulos

wevrebs kvlavac aqvT partiuli interesebi da ZiriTad energias isev

partiul saqmianobas ufro axmaren, vidre sakrebuloSi muSaobas. es

umTavresad imiT aris gamowveuli, rom sazogadoebrivma kontrolma ver

miaRwia iseT dones, roca sakrebulos wevrs aRar eqneba Tavisi

valdebulebebisadmi upasuxismgeblo damokidebulebis SesaZlebloba.

aRmasrulebeli organoa qalaq rusTavis mTavroba, romelsac

xelmZRvanelobs 4 wlis vadiT arCeuli qalaqis meri. mTavrobis wevrTa kandidaturebs meris wardginebiT sakrebulo amtkicebs.

qalaqis mTavroba, meria, Sedegeba meris, misi 3 moadgilis da maTdami

daqvemdebarebuli ganyofilebebisa da samsaxurebisagan. meriis saqmianobis

ganmsazRvreli ZiriTadi Sida dokumentia "rusTavis adgilobrivi

TviTmmarTvelobis aRmasrulebeli organos - mTavrobis debuleba".

6

meriis struqturas safuZvliani sistemuri reforma ar ganucdia, raTa

gadasinjuliyo samsaxurTa uflebamosilebani, ganxorcielebuliyo

moxeleTa raodenobis optimizacia da gaumjobesebuliyo marTvis stili.

TanamSromelTa kvalifikaciis TvalsazrisiT, sabWoTa periodTan SedarebiT

Tvisobrivi sxvaoba ar aris. saqmis warmoebac isev sabWoTa yaidisaa.

samsaxurebis saqmianoba ar aris gamWvirvale, qalaqis mosaxleoba saerTod

ver cnobs samsaxuris ufrosebs.

aris SemTxvevebi konkretuli pirebisaTvis specialuri Tanamdebobebisa da

mTeli samsaxurebis Seqmnisa. magaliTad, merTan daaxloebuli pirisaTvis

(Tanaklaseli), romelsac rusTavis maJoritari deputatoba surda,

specialurad Seiqmna meriis axali samsaxuri: adgilobrivi TviTmmarTvelobis sazogadoebasTan urTierTobisa da samarTaldamcav organoebTan muSaobis, adamianis uflebaTa dacvis saqalaqo samsaxuri. arCevnebSi damarcxebis Semdeg, rodesac am pirovnebam dakarga rusTavSi

saqmianobis interesi, misTvis Seqmnili samsaxuri (romelsac aranairi

mkafio funqcia ar gaaCnda, miT ufro, rom paralelurad arsebobda

"informaciisa da sazogadoebasTan urTierTobis municipaluri centri")

gauqmda.

meriis pressamsaxuri gadakeTda "informaciisa da sazogadoebasTan

urTierTobis municipalur centrad". sainteresoa, rom es axladSeqmnili

samsaxuri daregistrirda, rogorc Sps. kuluarebSi gamoiTqva varaudi, rom

es samarTlebrivi forma Semdegi mosazrebis gamo SeirCa: Tu Cveulebriv

sajaro samsaxurSi moxeleTa xelfasi garkveuli sqemis Sesabamisad,

Tanrigebis mixedviT iniSneba, rac maRali xelfasis daniSvnis saSualebas

ar iZleva, Sps-s aseTi SezRudva ara aqvs. aRniSnuli sawarmo finansdeba

adgilobrivi biujetidan 24000 laris odenobiT (daax. 12000 aSS

dolari). aRsaniSnavia, rom Tu kerZo samarTlis iuridiul pirs

adgilobrivi biujetidan 25000-ze meti dafinansebis miReba unda, maSin is

konkursis safuZvelze unda iyos gamovlenili "saxelmwifo Sesyidvebis

Sesaxeb" kanonis Tanaxmad. amrigad, konkursi Tavidan iqna acilebuli,

Semdeg ki, wlis ganmavlobaSi, am organizacias qalaqis biujetidan kidev 6

aTasi lari daemata.

sazogadoebasTan urTierTobis municipaluri centri dResac ZiriTadad

funqcionirebs, rogorc meriis pressamsaxuri. axali saxelwodebis

gasamarTleblad daaarses moqalaqeebTan urTierTobis cxeli xazi, Tumca

Semosuli zarebis aRricxva ar xdeba. centris meore aqtivoba

iTvaliswinebda qalaqis 15 yvelaze xalxmraval adgilas safosto yuTebis

ganTavsebas. yuTebi ki dakides, magram yovelgvari warweris gareSe, ris

gamoc, SeuZlebelia, rom moqalaqeebma saerTod miaqcion yuradReba.

2002 wlisaTvis rusTavis meriaSi funqcionirebda 10 komisia. amJamad

struturebis axali sqema Seqmnis procesSia, amitom meriis aparati ver

iZleva danamdvilebiT pasuxs arsebuli komisiebis zusti raodenobis

Sesaxeb. aseve ar arsebobs pasuxi kiTxvebze: romeli komisiaa mudmivmoqmedi,

7

romeli - droebiTi, ver asaxeleben komisiebSi dasaqmebul personals, verc

imas, Tu vin xelmZRvanelobs komisiebs da vin arian maTi wevrebi.

komisiebis muSaobis siRrmiseuli Seswavlis mizniT magaliTisTvis

SegviZlia meris stipendiatebis komisia aviRoT, romelic niWier bavSvebs

stipendiebs aniWebs. zepiri interviuebiT ASesaZlebeli gaxda mxolod

Semdegi informaciis mopoveba: stipendiis odenoba da stipendiatTa

raodenoba. oficialuri sabuTebis mopoveba ver moxerxda, verc is

dadginda, sad inaxeba es dokumentacia. sityvieradac ki ver gvipasuxes

Semdeg sakiTxebze: rogoria gamarjvebulTa SerCevis kriteriumebi,

kandidaturebis wardgenis wesi, wardgenil kandidatTa ricxvi.

2. ekonomikuri mdgomareoba

a. zogadi daxasiaTeba

demokratiuli struqturebis ganviTareba axali demokratiis qveynebSi

mWidrodaa dakvSirebuli sabazro ekonomikis ganviTarebasa da menejmentis

Tanamedrove formebis damkvidrebasTan.

samwuxarod, saqarTveloSi, gansakuTrebiT TviTmmarTvelobebis doneze,

kvlav saxezea marTvis sabWouri stili. metad mZime situaciaa rogorc

municipaluri qonebis warmoSobis, ise sabiujeto sferoSi.

saxelmwifo da municipaluri qonebis gamijvnis kuTxiT raime realuri

nabiji ar gadadgmula, Tu ar CavTvliT imas, rom parlamentma meore

mosmeniT miiRo kanoni "adgilobrivi TviTmmarTveli erTeulis qonebis

Sesaxeb", Tumca es kanoni sabolood ar aris damtkicebuli.

yovelive zemoaRniSnuli naTlad metyvelebs, rom saqarTveloSi

adgilobrivi TviTmmarTvelobis erTeulebis avtonomiurobis xarisxi Zalze

dabalia. ar arsebobs sakanonmdeblo baza, romelic adgilobrivi

TviTmmarTvelobis erTeulebs qonebis sakuTrebis uflebas miscemda.

realurad, adgilobriv TviTmmarTvelobas sakuTari qoneba ar gaaCnia.

raionebSi da im qalaqebSi, romlebic ar Sedian raionis SemadgenlobaSi,

umetesad arsebobs SezRuduli pasuxismgeblobis sazogadoebebi, romelSic

saxelmwifos wili 100 procentia da isini marTvis uflebiT aqvT

gadacemuli swored zemoTdasaxelebul raionebsa da qalaqebs.

faqtiurad, raionis adgilobrivi mmarTvelobis organoebi ar

warmoadgendnen decentralizebul rgolebs. am SemTxvevaSi saqme gvaqvs

dekoncentraciis garkveul formasTan.

yovelive aRniSnulis gaTvaliswinebiT, dRis wesrigSi aqtiurad dgas

realuri decentralizaciis ganxorcielebisaTvis sakanonmdeblo bazis

Seqmnis sakiTxi.

8

aranakleb rTuli viTarebaa adgilobrivi biujetebis formirebis sferoSic.

kanonmdeblobiT gansazRvrulia 6 tipis adgilobrivi gadasaxadi

(ekonomikuri saqmianobisaTvis, saTamaSo biznesis, sakurorto, sastumros,

reklamis, adgilobrivi simbolikis gamoyenebisaTvis). es gadasaxadebi

mniSvnelovani fiskaluri efeqtis matareblebi ar aris da maTi wili

adgilobrivi biujetebis mTeli sagadasaxado Semosavlebis 5 procents ar

aRemateba.

arsebobs saerTo-saxelmwifoebrivi gadasaxadebi, romlebic kanoniT

dadgenili normativebis safuZvelze mTlianad an nawilobriv iricxeba

qalaqis biujetSi. esenia: saSemosavlo gadasaxadi (85%); mogebis gadasaxadi

(85%); qonebis gadasaxadi (100%); miwis gadasaxadi (100%); gadasaxadi

qonebis gadacemisaTvis (100%); gadasaxadi bunebrivi resursebiT

sargeblobisaTvis (100%); gadasaxadi mavne nivTierebebiT garemos

dabinZurebisaTvis (100%). garda amisa, kanoniT gansazRvrulia

mosakreblebisa da sxva arasagadasaxado Semosavlebis arseboba.

faqtiurad, centraluri biujeti Semosavlebs ganusazRvravs adgilobriv

biujets. centraluri biujetidan gadacemul transfers ar gaaCnia mkafiod

gamokveTili arc miznobrivi da arc gamoTanabrebiTi xasiaTi. is realurad

warmoadgens raionisa Tu qalaqis Semosavlebis da xarjebis disbalansis

dafarvis saSualebas.

miuxedavad imisa, rom organuli kanonis Tanaxmad, adgilobriv finansebTan

dakavSirebiT garkveuli principebi Seicvala, adgilobrivi biujetebis

Sesaxeb kanonis ararsebobisa da sxva kanonebSi Sesabamisi cvlilebebis

ganuxorcieleblobis gamo realurad Semosavlebis ganawilebis modeli ar

Secvlila.

ufro metic, axla, rodesac gaimijna adgilobrivi TviTmmarTveloba da

mmarTveloba, eqskluziuri da delegirebuli uflebamosilebebi, naTlad

Cans, Tu adgilobrivi TviTmmarTvelobebis SemosavalTa ra nawilis moqceva

SeiZleba sakuTari Semosavlebis cnebis qveS da ra nawilisa - miznobrivi

Semosavlebis qveS. aRmoCnda, rom adgilobrivi TviTmmarTvelobis erTeulTa

umravlesobas sakuTari Semosavlebis saxiT, eqskluziuri

uflebamosilebebis gansaxorcieleblad TiTqmis simboluri Tanxebi darCa.

maTi Semosavlebis daaxloebiT 70% delegirebuli uflebamosilebebis

ganxorcielebas xmardeba.

samwuxarod, qalaq rusTavis biujetis Semosavlebis ZiriTadi nawili (maT

Soris Semosavlebi: mogebis, saSemosavlo, miwis, qonebis, qonebis gadacemis,

bunebrivi resursebis, garemoze mavne nivTierebebiT zemoqmedebis

gadasaxadebidan) SesaZlebelia centraluri xelisuflebis mier iqnes

gansazRvruli, rogorc "sxva Sesabamisi Semosavali", romliTac

delegirebuli uflebamosilebebi finansdeba. "saqarTvelos 2003 wlis

saxelmwifo biujetis Sesaxeb" kanonis Tanaxmad, centraluri xelisufleba

9

adgilobriv TviTmmarTvelobas garkveuli xarjebis biujetSi

gaTvaliswinebas akisrebs.

centralur xelisuflebas yovelTvis aqvs SesaZlebloba, miiRos kanonebi

an kanonqvemdebare aqtebi, romelTa realizaciis xarjebic qalaqs

daekisreba imis miTiTebiT, rom am mizniT saerTo-saxelmwifoebrivi

gadasaxadebidan aqvs gadacemuli normativebi. saboloo jamSi yoveli aseTi

SemTxvevis dros qalaqis biujetSi mcirdeba eqskluziur

uflebamosilebebze moxmarebuli xarjebi, mis sanacvlod ki izrdeba is

xarjebi, romlebic delegirebul uflebamosilebebs xmardeba. ufro metic,

aRniSnuli midgomis gagrZelebis SemTxvevaSi SesaZlebelia, rom qalaqis

biujetis 70-80 procentze mets swored delegirebuli uflebamosilebebi

Seadgendes.

TavisTavad aseTi praqtika uxeSad arRvevs subsidiarobis princips. aseT

SemTxvevaSi ki TviTmmarTvelobis institutis realurobaze saubari Zalze

saeWvoa.

b. rusTavis biujeti da qoneba

yovelive zemoTqmulis naTeli ilustraciaa qalaq rusTavis 2003 wlis

biujeti. 2003 wels biujetis faqtiuri Semosavlebi Seadgenda 9344,5

aTas lars, romelic moicavda sagadasaxado da arasagadasaxado Semosavlebs

da centraluri biujetidan miRebul transferts 713 aTasi laris

odenobiT. qalaqis biujetidan 4862,3 aTasi lari daixarja qalaqze

centraluri xelisuflebis mier delegirebuli uflebamosilebebis

Sesrulebaze. darCenili Tanxidan, romelic Sedgens 4276,5 aTas lars, 1353

aTasi lari moxmarda qalaqis adgilobrivi TviTmmarTvelobis

adminitraciul xarjebs da 412,5 aTasi lari - sabanko davalianebis

dafarvas. qalaqis eqskluziuri uflebamosilebebis gansaxorcieleblad

qalaqs 2511 aTasi lari darCa. anu qalaqs, romlis mosaxleoba daaxloebiT

120 aTas kacs Seadgens da farTobi 60,6 kv. km-ia, kanoniT

gaTvaliswinebuli farTo eqskluziuri uflebamosilebebis

gansaxorcieleblad darCa, faqtiurad, Zalze mcire Tanxa - 1167 aTasi aSS

dolari, anu erT sul mosaxleze weliwadSi 9,7 aSS dolari.

sainteresoa q. rusTavis wina wlebis biujetis Semosavlebis dinamika,

romelic 1999 wels Seadgenda 5077,4 aTas lars (qalaqs centridan

transferti ar miuRia), 2000 wels - 5437,2 aTass (maT Soris centridan

miRebuli transferti 100 aTasi lari), 2001 wels - 7816,2 aTass

(centridan transferti ar yofila); 2002 wels ki - 75559 aTas lars

(centridan transferti ar momxdara). amasTan aRsaniSnavia, rom wina

wlebSi mTlian xarjebTan mimarTebaSi eqskluziuri uflebamosilebebis

wili naklebi iyo, delegirebul uflebamosilebebze gaweuli xarjebi ki -

ufro meti.

10

cxr. 1. rusTavis biujetis Semosavlebi1995, 1997 - 2002 wlebSi

2.6

5.1

8.3

7 6.7

7.78.3

2.9

4.9 5.15.4

7.6 7.6

11.1

2

3

4

5

6

7

8

9

10

11

12

1995 1997 1998 1999 2000 2001 2002

mln. lari

gegma faqti

yovelive zemoaRniSnuli Tavis zegavlenas axdens qalaq rusTavis

adgilobrivi TviTmmarTvelobis organoebSi demokratiuli auditis

xarisxze. kerZod:

delegirebul uflebamosilebebze gaweuli xarjebis didi xvedriTi

wilis pirobebSi, rac mTliani biujetis naxevarze mets (52%) Seadgens,

adgilobrivi TviTmmarTvelobis organos uflebamosileba sustia.

faqtiurad, am xarjebis gawevis operirebas axorcieleben centraluri

xelisuflebis adgilobrivi ganyofilebebi, romelTa raodenoba,

struqtura, TanamSromelTa ricxvi da Sromis anazRaureba centraluri

xelisuflebis mieraa gansazRvruli.

qalaqis adgilobrivi TviTmmarTvelobis organoebis administraciuli

xarjebis mniSvnelovani nawilic swored centraluri aRmasrulebeli

xelisuflebis saqalaqo teritoriuli organoebis dafinansebas xmardeba

(mag: ganaTlebis saministros rusTavis ganaTlebis ganyofileba;

axalgazrdul saqmeTa saxelmwifo departamentis rusTavis ganyofileba

da a.S.). anu aqac adgilobrivi xelisuflebis uflebamosilebebi mxolod

finansur operirebaze dadis.

eqskluziuri uflebamosilebebis Tanxa Zalze mcirea da qalaqis

adgilobrivi TviTmmarTvelobis organoebs aRniSnuli Tanxebis

damoukidebeli gankargvis saSualeba mxolod aq eZleva.

meore, aranakleb mniSvnelovani aspeqti, romelmac unda ganapirobos qalaqSi

demokratiuli auditis xarisxi, aris misi biujetis formati da

sabiujeto procesi. erT-erTi ZiriTadi faqtori qalaqis TviTmmarTvelobis

organoebis mier sabiujeto gadawyvetilebebis miRebis procesSi

sazogadoebis realurad CasarTvelad aris biujetis gamWvirvaloba.

biujetis gamWvirvalobas safuZveli biujetis formatma unda Seuqmnas. q.

rusTavis biujeti, saqarTvelos sxva biujetTa msgavsad, muxlobrivi

principiT dgeba, anu mis biujetSi gamsxvilebuli formiT aris

11

warmodgenili Semosavlebis saxeebi da xarjebis mimarTulebebi. biujetSi

ar Cans programuli dagegmarebis aranairi komponenti, aseve ar Cans

TiToeuli sabiujeto xarjis socialuri mizani, amocana, konkretuli

RonisZiebebi, Sefasebis indikatorebi da a.S. qalaqis biujetis formati

imdenad zogadia, rom TiToeuli moqalaqisTvis srulyofili formiT,

broSuris saxiT darigebis SemTxvevaSic ki is mxolod zogadi informaciis

Semcveli iqneba da ar mogvcems raime tipis sazogadoebrivi monitoringis,

miTumetes sabiujeto gadawyvetilebebSi sazogadoebis monawileobis

saSualebas.

sabiujeto procesis yvela etapze mosaxleobis CarTvis realuri

meqanizmebi ar arsebobs, es gamomdinareobs 2 garemoebidan:

1. biujetis formati informaciis matarebeli ar aris da wlidan wlamde

masSi mxolod ricxobrivi parametrebi icvleba. ar Cans konkretuli

amocanebi, romelic ama Tu im sabiujeto wels unda gadawydes,

miTumetes ar Cans qalaqis sabiujeto politika da prioritetebi;

2. qalaqis biujetis miReba da Sesruleba zemoaRniSnuli mizezebis gamo

centralur xelisuflebasTan mimarTebaSi xorcieldeba, anu

adgilobrivi xelisufleba, ZiriTadad, centrTan angariSvaldebulebas

grZnobs da sazogadobasTan misi angariSvaldebulebis xarisxi dabalia.

amas is garemoebac uwyobs xels, rom qalaqis safinanso ganyofilebis

xelmZRvaneli uSualod finansTa saministros mier iniSneba da,

Sesabamisad, mis instruqciebs asrulebs.

calke problemas warmoadgens dagegmili Semosavlebis amoReba.

gadasaxadebis sruli amoReba saerTod ver xorcieldeba. marTalia, am mxriv

rusTavs sxva TviTmmarTvel erTeulze ukeTesi poziciebi aqvs, magram es

upiratesoba SedarebiTia.

cxr. 2. rusTavis biujetis 2003 wlis Semosavlebi (aTasi lari)

gegma faqti %%

saSemosavlo gadasaxadi 3699.2 4142.4 111.98

mogebis gadasaxadi 1020.0 503.7 49.38

miwis gadasaxadi 1281.0 860.0 67.14

gadasaxadi bunebrivi resursebiT sagreblobisaTvis 95.0 36.0 37.89

gadasaxadi mavne nivTierebiT dabinZurebisaTvis 434.0 288.4 66.45

qonebis gadasaxadi 1060.0 1029.8 97.15

gadasaxadi qonebis gadacemisaTvis 160.0 102.0 63.75

adgilobrivi gadasaxadebi 781.0 997.2 127.68

mosakreblebi 114.5 45.3 39.56

arasagadasaxado Semosavlebi 930.6 438.7 47.14

Semosavali kanoniT dawesebuli sxva arasagadasaxdo

Semosavlebidan

1476.0 901.0 61.04

Semosavlebis jami 11051.3 9344.5 84.56

wlis dasawyisisaTvis arsebuli saxsrebis naSTi 209.1

12

xarjebis dasafaravad mimarTuli da mosesxebuli

Tanxis gamoklebiT

balansi 11051.3 9553.6 86.45

sayuradReboa 2003 wlis biujetis xarjviTi nawilis monacemebi. misi

punqtebi ukve TavisTavad mravlismetyvelia, Tumca magaliTisTvis mainc

SeiZleba SevadaroT meriisa da sakrebulos, an meriisa da jandacvis

xarjebi.

cxr. 3. rusTavis biujetis 2003 wlis xarjebi (aTasi lari)

gegma faqti %%

keTilmowyoba 489.6 538.5 110.00%

sasmeli wyali da gazifikacia 654.8 442.7 67.61%

transporti da kavSirgabmuloba 84.0 0.0 0.00%

sagzao meurneoba 603 230.0 38.14%

funqcionaluri klasifikaciis sxva ZiriTadi

jgufebiT araklasificirebuli xarjebi ekonomikaSi

769.8 660.0 85.74%

ganaTleba 3166.8 2768.5 87.42%

kultura 782.8 726.6 92.82%

sporti 60.5 47.3 78.18%

jandacva 891.7 586.2 65.74%

mosaxleobis saxelmwifo socialuri daxmarebebi 554.2 540.3 97.49%

veterinaruli momsaxureba 22.9 20.7 90.39%

arqivi 6.2 5.4 87.10%

samxedro komisariatebi, samoqalaqo Tavdacva 57.8 43.7 75.61%

samarTaldamcavi organoebis Senaxvis xarjebi 142.7 124.9 87.53%

sakrebulos xarjebi 124.1 81.8 65.91%

meriis xarjebi 1366.9 1271.2 93.00%

xarjebi specialuri Semosavlebidan 486.8 387.0 79.50%

sarezervo fondi 38.0 0.0 0.00%

sxa xarjebi 782.1 659.6 84.34%

xarjebis jami 11084.7 9138.8 82.45%

Semosavlebis xarjebze gadameteba 205.7

gardamavali sabrunavi saSualebebi wlis

bolosaTvis

0.0 209.1

balansi 11084.7 9553.6 86.19%

aqve unda aRiniSnos, rom 2003 wlis transferti gaTvaliswinebuli iyo

1050,8 aTasi laris odenobiT, magram, faqtiurad, gadmoiricxa 713 aTasi

lari (dagegmilis 67.85%).

da bolos, rac Seexeba qalaqis municipalitetis qonebas, amJamad

adgilobrivi mTavroba atarebs mis inventarizacias. inventarizaciis

procesi jer ar dasrulebula da amitom mis Sesaxeb veranairi informaciis

miReba ver xerxdeba.

13

informaciis ararseboba warmoadgens problemas ara mxolod

sazogadoebrivi auditisaTvis, aramed aRmasrulebeli xelisuflebisTvisac.

qonebis aRricxvianobis xarvezebze metyvelebs Semdegi magaliTi:

adgilobrivma xelisuflebam miiRo gadawyvetileba erT-erTi Senobis

saprivatizacio nusxaSi Setanis Sesaxeb. Semdgom gairkva, rom Senoba ar

warmoadgenda municipaluri qonebas da erT-erT saministros ekuTvnoda.

saWiro gaxda axali dadgenilebis miReba am Senobis saprivatizacio siidan

amoRebis Sesaxeb.

3. yoveldRiuri praqtika

a. sakadro politika da rekrutireba

meria. organuli kanoni adgilobrivi mmarTvelobisa da TviTmmarTvelobis

Sesaxeb gansazRvravs adgilobrivi samsaxurebis Seqmnis wess. kanoni

iTvaliswinebs qalaqis meris, pirveli moadgilis, moadgileebis, aparatis

xelmZRvanelis, adgilobrivi samsaxurebis xelmZRvanelTa Tanamdebobebs,

romlebic ayalibeben merias. kanoni iTvaliswinebs axladdaniSnuli

xelmZRvanelebis damtkicebas sakrebulos sxdomaze. xelmZRvanelebi

daniSvnisTanave amzadeben samsaxuris debulebas, romelic gansazRvravs

saStato erTeulebis odenobas.

sajaro moxeleTa Sesaxeb kanoni iTvaliswinebs konkursis wesiT daniSvnas

da atestacias, rac meriaSi ar gamoiyeneba. rogorc wesi, vakansiebze

adgilobriv kadrebs awinaureben, vinaidan miCneulia, rom sistemaSi

garkveuli xniT muSaoba kargi skolaa. kadrebis daniSvna xdeba samsaxuris

ufrosis mier wardgenis Semdeg. samsaxurebis xelmZRvanelTa Tu meris

rekomendaciebi gadawyvetilebis miRebis ZiriTadi kriteriumia. kadrebi,

ZiriTadad, meriis TanamSromlebidan irCeva. meriaSi aRniSnaven, rom msgavsi

gadawyvetilebebi naklebad amarTlebs, saWiroa axli kadrebi, romelTa

sakonkurso wesiT SerCeva yvelaze misaRebi gamosavali iqneba.

meriaSi kadrebis saqmianobis efeqturobis Sefasebis sistema ar arsebobs.

meriis sxdomebze periodulad ismenen adgilobrivi samsaxurebis

xelmZRvanelTa angariSs maT daqvemdebarebaSi myofi samsaxuris saqmianobis

Sesaxeb, riTac, ZiriTadad, TviT xelmZRvanelis saqmianobis Sefaseba xdeba.

meriaSi moqmedebs waxalisebis (premiebi) da dasjis (gafrTxileba, SeniSvna)

sistema.

gadawyvetilebis mimRebi rgolis saSualo asaki 35 welia, samsaxurebis

xelmZRvanelebi, ZiriTadad, 26-35 wlisa arian. meris moadgileebis asaki

SedarebiT maRalia – 40 wlis zeviT. samsaxurebis xelmZRvanelTa

ganaTleba ZiriTadad Seesabameba maT daqvemdebarebaSi myofi samsaxuris

profils.

14

meriis saqmianobis efeqturobis gazrdisTvis mniSvnelovania sakadro

menejmentis ganviTareba. am kuTxiT gansaxorcielebeli erT-erTi

umniSvnelovanesi amocana kadrebis saqmianobis Sefasebis sistemis danergvaa.

aseve mniSvnelovania TanamSromelTa konkursis wesiT SerCevis sistemis

danergva. es sakiTxi mniSvnelovnad gansazRvravs meriis sakadro politikis

gaxsnilobas, aseve xels Seuwyobs meriis saqmianobaSi axali, kvalificiuri

kadrebis CarTvas.

TviT meriis warmomadgenelTa gancxadebiT, mizanSewonilia, rusTavis

meriasTan Camoyalibdes kadrebis momzadebisa da gadamzadebis moklevadiani

kursebi. aseve mizanSewoniladaa miCneuli kadrebis momzadebis "saxelmwifo

dakveTis" principis gamoyeneba.

sakrebulo. sakrebulos wevrTa profesiuli done mTel saqarTveloSi

zogadad Zalze dabalia. am mxriv rusTavis sakrebuloc ar aris

gamonaklisi. rusTavis sakrebuloSi meore vadiT arCeuli 2 wevria,

romlebic muSaobis efeqturobis TvalsazrisiT sxva wevrebisgan didad ar

gamoirCevian. komisiis bevri wevri ar eswreba sxdomebs, aqtiurad ar

monawileobs komisiis muSaobaSi da, SeiZleba iTqvas, rom misi wevrobac

mxolod formalur xasiaTs atarebs.

TviTmmarTvelobis wevrebs naklebad aqvT kvalifikaciis gazrdis motivacia.

isini sakrebuloebis araefeqturobas, ZiriTadad, kanonmdeblobis xarvezebiT

xsnian da nakleb yuradRebas uTmoben sakrebulos saqmianobis

organizebulobis gaumjobesebas anda arsebuli uflebamosilebebis

srulyofilad gamoyenebas. sasurvelia, adgilobrivi TviTmmarTveloba metad

zrunavdes sajaro moxeleTa periodul gadamzadebasa da maTi kvalifikaciis

amaRlebaze. amisaTvis saWiroa standartizebuli saxelmwifo programis

arseboba, romlis gavlac aucilebeli iqneboda adgilobrivi

TviTmmarTvelobis warmomadgenelTaTvis.

b. gadawyvetilebis miReba

yoveldRiuri marTvis procesSi unda aRiniSnos araformaluri kavSirebis

didi roli. aseTi kavSirebi avseben sakanonmdeblo sferoSi arsebul

vakuums da patrimonialuri urTierTobis formiT vlindebian. arCevnebidan

moyolebuli saxelmwifo aparati TviTneburad axorcielebs marTvis

process. garantirebuli saqmianobis, faqtiurad, erTaderT meqanizms

warmoadgens xelisuflebaSi myof maRali rangis moxeleebTan da

ekonomikuri klanebis warmomadgenlebTan damyarebuli megobruli Tu

klienteluri urTierToba. miuxedavad imisa, rom biurokratiis qveda

eSelonebSi Zalze xSirad gvxvdeba moxelis mier sakuTari uflebebisa da

movaleobebis ucodinarobis faqtebi, dabali samoqalaqo aqtivobisa da

xelisuflebis mier Zalovani meTodebis gamoyenebis wyalobiT, kontroli

mosaxleobaze SenarCunebulia.

15

meria. meriis samuSao gegmis formireba wlis dasawyisSi xorcieldeba.

dargis kuratorebTan SeTanxmebiT yvela samsaxuri aparatSi warmoadgens

sakuTar gegmas. aparati ganixilavs maT da gegmis proeqts merTan aTanxmebs.

dgeba samuSao gegma wlis, kvartlis, Tveebis mixedviT. meriis sxdomaze

damatebiT sakiTxad Sedis gegmaSi koreqtivebi (Sesworebebis an damatebebis

saxiT). aqtualobadakarguli sakiTxebis mosaxsnelad Sesabamisi samsaxuri

adgens moxsenebiT baraTs, gaaqvs is meriis sxdomaze, ris Sedegadac aseT

sakiTxs xsnian dRis wesrigidan an samuSao gegmidan.

aqtualur, samuSao gegmiT gaTvaliswinebul sakiTxebze samarTlebrivi

aqtebis proeqtebi waredginebaT mers da merias. es proeqtebi aparatis

xelmZRvanels moxsenebiTi baraTis saxiT Seaqvs meris saxelze, ris

Semdegac mas dRis wesrigSi ayeneben. proeqti SeTanxmebuli unda iyos

yvela im samsaxurTan da Tanamdebobis pirTan, romelTa kompetenciaSic

Sedis proeqtiT gaTvaliswinebuli sakiTxebi. proeqts Tan unda erTvodes

SeTanxmebis furceli, romelzec miTiTebuli iqneba proeqtis avtoris da

SemTanxmebel pirTa Tanamdebobebi. xelmoweril dokuments TandarTul

masalebTan erTad abareben aparats, romelic 5 dRis ganmavlobaSi

Seiswavlis mas (Sinaarsi, Sesabamisoba kanonmdeblobasTan da a.S.). miRebuli

gadawyvetilebis ganxorcielebaze kontrols awesebs meris romelime

moadgile.

meria ganixilavs "municipaluri dakveTis" erTian sistemaze gadasvlis

SesaZleblobas, romlis mixedviTac yvela dargobrivi qvedanayofi calke

amzadebs ganacxadebs konkretuli danaxarjebis gawevis Sesaxeb. eqspertiza

gansazRvravs sabiujeto wels maTi gamoyenebis SesaZleblobas. ganacxadebis

erTian gegmaSi iqmneba calkeuli sasaqonlo poziciebis sakonkurso

safuZvelze dajgufebisa da ganTavsebis pirobebi. saerTaSoriso praqtika

adasturebs, rom es sistema ganapirobebs rogorc sabiujeto saxsrebis

ekonomias, ise kerZo seqtoris aqtiur Cabmas municipalur ekonomikaSi.

sakrebulo. qalaq rusTavis sakrebulos debulebis 59-e muxlis Tanaxmad,

aRmasrulebeli organoebi da Tanamdebobis pirebi angariSvaldebulni arian

sakrebulos winaSe. isini weliwadSi erTxel sakrebulos warudgenen

angariSs gaweuli muSaobis Sesaxeb. sakrebulos mxridan uaryofiTi

Sefaseba SesaZlebelia gaxdes mTavrobis an calkeuli wevris da sxva

Tanamdebobis pirTa mimarT undoblobis gamocxadebis an maTze sxva saxis

administraciuli zemoqmedebis ganxorcielebis safuZveli. miuxedavad amisa,

sakrebulo TiTqmis ver axerxebs meriis saqmianobis sazedamxedvelo

funqciis Sesrulebas.

rusTavis sakrebulos debulebis mixedviT, yoveli wlis dasawyisSi

sakrebulos kolegia SeimuSavebs da sakrebulos dasamtkiceblad warudgens

sakrebulos wliur samuSao gegmas, magram sakrebulos dadgenilebebs Tu

16

gadavxedavT, wliuri gegmis damtkicebis sakiTxi arsad ar gvxdeba. rCeba

STabeWdileba, rom bolo wlebis wliuri gegmebi saerTod ar SemuSavebula.

kanonis mixedviT, sakrebulos sxdomis mowveva unda moxdes sam TveSi

erTxel mainc. praqtikulad, sxdomebis mowveva sakrebulos saqmianobis is

mxarea, romelic formalurad aris daculi da sxdomaTa ricxvma

weliwadSi SesaZloa 10-sac miaRwios. sxdomis muSaobis Sesaxeb dgeba

oqmebi, romlebic adgilobrivi TviTmmarTvelobis aparatSi inaxeba.

faqtiurad, formaluria sakrebulos komisiaTa muSaoba. saarCevno

periodebSi sakrebulos wevrTa Zalisxmeva mTlianad winasaarCevno

politikur aqtivobebs xmardeba da sakrebulos, maT Soris komisiebis,

isedac susti muSaoba am periodSi TiTqmis wydeba.

magaliTisTvis, mTavrobis mier biujetidan gaxarjuli Tanxebis kontroli

sarevizio komisias evaleba, magram rusTavis sakrebulos sarevizo komisia

am funqcias TiTqmis ver axorcielebs. bolo xanebSi sarevizio komisiis

funqcia nawilobriv SeiTavsa sakrebulos droebiTma antikorufciulma

komisiam. sakrebulos muSaobis sisusteze migvaniSnebs is faqti, rom 1998

wlis Semdeg jer kidev ar Seqmnila sakrebulos mier Tanxebis miznobrivad

xarjvis gakontrolebis precendenti.

saerTod, rusTavis adgilobrivi xelisufleba ukve rva welia, rac ar

ganaxlebula. qalaqs bolo wlebis ganmavlobaSi faqtobrivad erTi da igive

jgufi marTavs. is sakadro cvlilebebi, romlebic aqamde ganxorcielda,

fiqtiur xasiaTs atarebda.

jerjerobiT rusTavSi adgilobrivi xelisuflebidan ufro xiluli

aRmasrulebeli Stoa da adgilobrivi politikis formireba, ZiriTadad,

qalaqis mTavrobis, kerZod ki, meris mier xdeba. sakrebulo Tavis

uflebamosilebas arasrulad iyenebs da TiTqmis daubrkoleblad amtkicebs

meriis yvela gadawyvetilebas.

4. steikholderebi

demokratiuli auditis monawile TiToeul agents sakuTari miznebi

amoZravebs, Tumca yoveli maTganis winaSe arsebobs konkretuli

(Sidaorganizaciuli Tu sxva saxis) problemebi. unda aRiniSnos, rom

calkeul segmentebs ganviTarebis Tanamedrove etapze axasiaTebs mTeli rigi

uaryofiTi da dadebiTi mxareebi, da, samwuxarod, pirveli meores Warbobs.

a. politikuri partiebi

saqarTvelos politikuri partiebi or jgufad SeiZleba daiyos:

17

garkveuli ideologiis matarebeli politikuri jgufebi, romelTa

aqtivobis xarisxi da reitingi dabalia da sazogadoebaze maTi gavlena

dRiTidRe sustdeba.

politikur partiebis safars amofarebuli klanebi, romlebic calkeul

liderTa garSemo aerTianeben nomenklaturisa da naxevradmafiozuri

dajgufebebis warmomadgenlebs. am tipis partiebs gaaCniaT rogorc

amomrCevlis mosyidvisaTvis aucilebeli saxsrebi, ise Zalovan

struqturebze kontrolis berketebi. Sesabamisad, urTierTgarigebis

gziT isini axerxeben ama Tu im sferoze Tu regionze sruli

kontrolis mopovebas.

bolo xanebSi gamoikveTa kidev erTi tendencia - arsebuli krizisis fonze

politikur ZalTa nawili sazogadoebaSi reitingis gazrdas populisturi

mowodebebis gziT cdilobs. TiTqmis arcerT partias ar gaaCnia moqmedebis

mkafio programa, amitom mxolod zogadi lozungebis deklarirebiT

ifargleba.

politikuri partiebis regionuli organizaciebis aqtiuroba winasaarCevno

periods emTxveva. sxva dros umetes partiaTa ofisebi an saerTod ixureba,

an xSirad adgilsamyofels icvlis, amitom partiis regionuli

organizaciis xelmZRvanelis sakontaqto informaciis arqonis SemTxvevaSi

maTi moZieba rTulia. Tu gaviTvaliswinebT, rom xSirad sazogadoebis

yvelaze aqtiurma nawilmac ki ar icis, vin aris partiis adgilobrivi

lideri, moqalaqeTa umravlesobisaTvis partiasTan urTierToba

garTulebulia.

politikurad aqtiuri adamianebi xSirad iclian partiebs. iyo SemTxveva,

roca veZebdiT konkretuli partiis liders da Sexvedrisas aRmoCnda, rom

igi ukve sxva partiis regionul organizacias xelmZRvanelobs.

politikuri partiisaTvis, romelic adgilze regionuli organizaciis

ganviTarebas iwyebs, rogorc Cans, momgebiania, pirdapir daukavSirdes im

adamianebs, romelTac ukve aqvT formaluri Zalaufleba da gavlena

adgilobriv doneze. da piriqiT, adgilobrivi administraciis

warmomadgenlebi Zalauflebis SenarCunebis mizniT saswrafod afareben Tavs

axladdawinaurebul partias, an cdiloben partiis adgilobrivi

organizaciis iseTi saxeebiT dakompleqtebas, romlebic Tavis karieras

swored maT unda umadlodnen, ris gamoc advilad kontrolirebadni

iqnebian.

arCevnebis Sedegad xelisuflebis saTaveSi axali politikuri Zalis

mosvlis SemTxvevaSic faqtiurad araferi icvleba: aRmasrulebeli

organoebis xelmZRvanel Tanamdebobebze aTeuli wlebis ganmavlobaSi erTi

da igive saxeebi gvxvdeba.

magaliTisTvis, 1998 wels arCeul rusTavis sakrebuloSi 6Ppartia iyo

warmodgenili. 8-8 adgili moipoves aRorZinebam, moqalaqeTa kavSirma da

18

leiboristulma partiam, 2-2 adgili - socialisturma, erovnul-

demokratiulma, saxalxo partiebma. TumcaRa leiboristuli partiidan wina

mowvevis sakrebulos wevrTa umravlesobam maleve datova partia da calke

fraqcia Seqmna. 2002 wlis adgilobrivi TviTmmarTvelobis arCevnebis

Sedegad rusTavis sakrebuloSi Svidma partiam moipova adgili da am

SemTxvevaSic msgavsi tendenciebi SeiniSneboda.

b. masmedia

damoukidebeli mediis Camoyalibebis procesi sxva steikholderebTan

SedarebiT winaa wasuli, magram aqac sakmao problemebs vawydebiT. mediis

nawils politikuri Zalebi da oligarquli wreebi akontroleben. mwvaved

dgas seriozuli investiciebis ararsebobis problema. damoukidebeli media,

romelic samomxmareblo bazarzea orientirebuli, ZiriTad yuradRebas

skandaluri xasiaTis informacias uTmobs da TandaTan yviTeli presis

rangSi gadadis. metad mcirea sakiTxTa profesionaluri Sefasebis

SemTxvevebi. aRniSnul problemas aZlierebs JurnalistTa korpusis

kvalifikaciis arcTu ise maRali done.

zemoxsenebul mizezTa gamo iseTi sakiTxebis gaSuqeba, sadac skandaluri

informacia naklebia da kvalifikaciis garkveul dones moiTxovs (igive

TviTmmarTvelobisa da decentralizaciis sakiTxi), mediaSi naklebad xdeba.

rusTavSi damoukidebeli media ar arsebobs. ramdenime welia moqmedebs

adgilobrivi televizia "qvemo qarTlis televizia", romelic mudmivad

kontrolirdeba da adgilobrivi xelisuflebis (regionuli Tu qalaqis)

dakveTas asrulebs. Tu telekompanias wina xelisuflebis erT-erTi saimedo

sayrdenis, qvemo qarTlis gubernatoris axlo naTesavi ganagebda, axla

adgilobrivi mTavrobis (meriis) pressamsaxuris TanamSromeli, meris

ndobiT aRWurvili piri xelmZRvnelobs. qvemo qarTlis gubernatorisa da

rusTavis meris gaxmaurebuli konfrontaciis periodSi adgilobrivi

televizia (maSin, roca gubernatoris mier kontroldeboda) saerTod ar

aSuqebda meriisa da sakrebulos saqmianobas.

miuxedavad imisa, rom sainformacio gamoSvebebSi xandaxan kritikuli

siuJetebic gvxvdeba, aSkaraa, rom mTlianobaSi telekompania ver axerxebs

qalaqsa Tu regionSi mimdinare movlenebis monitorings da adgilobrivi

xelisuflebisagan damoukidebeli azris gatarebas.

am telekompaniasTan dakavSirebuli sasamarTlo procesebic naTlad

miuTiTebs, rom sxvadasxva saxelisuflo rgolebs Soris sakmaod didia

damoukidebeli mediis kontrolis survili da misi "misakuTrebis" ambicia.

televizia kvlav calkeuli pirovnebebis reklamis saSualebadaa aRqmuli

da ara mosaxlebis aqtivobis mastimulirebel wyarod.

19

beWdviTi mediidan aRsaniSnavia gazeTi "rusTavi", romelsac sabWoTa

periodSi "socialisturi rusTavi" erqva. im droidan moyolebuli gazeTs

kvlav igive redaqtori hyavs. gazeTi formalurad damoukideblad iTvleba,

magram finansurad meria exmareba. marTalia, gazeTi formalurad 2

kvireulia, magram xSirad mxolod TveSi erTxel gamodis. tiraJs ar

asaxeleben, magram araoficialuri monacemebiT 200 egzemplars ar

aRemateba. gazeTis ZiriTadi xelmomwerebi arian meriis samsaxurebi da

gayidvaSi 50 egzemplarze meti ar xvdeba. xazi unda gaesvas im

garemoebasac, rom swored es gazeTia is erTaderTi wyaro, sadac ibeWdeba

informacia adgilobrivi xelisuflebis mier gasayidad gatanili miwisa da

uZravi qonebis auqcionebis Sesaxeb. ase rom, kanonis moTxovna, rom amgvari

informacia aucileblad unda gamoqveyndes, mxolod formalurad

kmayofildeba.

qalaqSi gamodis 2 dargobrivi gazeTi: qimiuri qarxnis gazeTi "azoti" da

ganaTlebis muSakTa perioduli organo "moZRvari", romelsac ganaTlebis

ganyofileba gamoscems. "moZRvari" asaxavs mxolod mimdinare saskolo

cxovrebas da dargis problemebi masSi saerTod ar aris win wamoweuli.

xazgasasmelia is garemoeba, rom gazeTi "moZRvari" gamoicema adgilobrivi

mmarTvelobis samsaxuris - ganaTlebis ganyofilebis - mier da skolis

pedagogebs Soris iZulebis wesiT vrceldeba - am ukanasknelT gazeTis

safasurs xelfasidan ukaveben.

zemoTqmulidan gamomdinare unda iTqvas, rom rogorc adgilobrivi

televizia, ise nabeWdi presa mkveTrad CamorCeba Jurnalistikis

Tanamedrove standartebs da adgilobrivi xelisuflebis monitoringis

funqcias saerTod ver asrulebs.

bolo dros rusTavSi arasamTavrobo organizaciebis mier Catarebuli

kvlevis Sedeged gamovlinda, rom adgilobrivi presidan informacias iRebs

mosaxleobis mxolod 6,6 %, xolo kiTxvaze, romeli wyarodan miRebul

informacias endoba ufro metad, adgilobriv presas mxolod pasuxTa 1%

ergo.

rac Seexeba adgilobriv televizias, misi saSualebiT qalaqis mosaxleobis

59,6% iRebs informacias, magram am informacias mxolod 3,8 % endoba.

aRniSnuli maCveneblebi saqarTvelos sxva qalaqebTan SedarebiT

mniSvnelovnad dabalia. magaliTisTvis, saqarTvelos didi qalaqebis

mosaxleobis 49,3 % informacias adgilobrivi mediidan iRebs da mas

gamokiTxulTa 8,2 % endoba. es garemoeba kidev erTxel adasturebs, rom

rusTavSi sxva periferiul qalaqebTan SedarebiTac ki adgilobrivi presa

Zalze sustadaa ganviTarebuli.

g. arsamTavrobo organizaciebi

20

samoqalaqo sazogadoeba saqarTveloSi ZiriTadad mxolod samoqalaqo

organizaciebiT (arasamTavrobo organizaciebi) aris warmodgenili. saTemo

organizaciebi mxolod axla iwyeben Camoyalibebas, xolo sazogadoebrivi

interesebis damcveli sxva saxis gaerTianebebi (profkavSirebi da a.S.),

mcire gamonaklisis garda, sabWouri periodis reliqtebs warmoadgens da

xelisuflebis kontrolqveS imyofeba.

arasamTavrobo seqtori, miuxedavad gaviTarebis sakmaod maRali donisa,

realur gavlenas ver axdens politikis formirebaze. misi gavlena

sazogadoebaze jer kidev sustia. amave dros, saxelmwifo Tu kerZo

seqtoris sisustisa da dauintereseblobis gamo, mesame seqtori ZiriTadad

saerTaSoriso da dasavluri donorebis daxmarebis wyalobiT arsebobs.

bolo xanebSi SeimCneva sul ufro da ufro meti arasamTavrobo

organizaciis daintereseba adgilobrivi TviTmmarTvelobisa da arCevnebis

problematikiT, rac mTeli rigi koaliciebis Camoyalibebasa da erTobliv

saqmianobaSi gamoixateba.

rusTavis sasamarTloSi 2003 wlis agvistos mdgomareobiT 141

arasamTavrobo organizaciaa registrirebuli. maTgan umravlesoba

formalurad arsebobs. mxolod sami aTeuli organizaciaa, romelTa

saxelma mediaSi erTxel mainc gaiJRera. metnaklebad stabilurad mxolod

ramdenime adgilobrivi organizacia muSaobs.

saerTaSoriso organizaciebi naklebad arian dainteresebuli rusTaviT,

rasac, SesaZloa, misi dedaqalaqTan siaxlove ganapirobebs. mxolod 2003

wlidan daiwyes calkeuli programis ganxorcieleba IREX-ma (internet

centri), urbanulma institutma (kondominiumebis da safinanso-sabiujeto

programa), fondma "evraziam" (adgilobrivi TviTmmarTvelobis sainformacio

centri).

qvemo qarTlis regionSi da, kerZod, qalaq rusTavSi moqmedi arasamTavrobo

organizaciebi cdiloben sakuTari wvlili Seitanon sajaro

dawesebulebebSi administraciuli kodeqsis amoqmedebaSi. amas garda, isini

konsultaciebs uweven moqalaqeebs, axorcieleben administraciuli

kodeqsis danergvis procesis monitorings da a.S.

sajaro dawesebulebis mier informaciis gacemaze uaris Tqmis SemTxvevaSi

arc moqalaqeebis da arc arasamTavrobo organizaciis warmomadgenlis

mxridan sasamarTloSi mimarTvis faqti ar dafiqsirebula.

saerTo jamSi mesame seqtori Zlieri ar aris, organizaciebs Soris

koordinacia da TanamSromloba fragmentulia, magram unda aRiniSnos, rom

maTi sazogadoebrivi imiji gaumjobesda da sazogadoebasTan maTi kavSirebi

izrdeba.

21

rac Seexeba mesame seqtoris gavlenas adgilobrivi politikis formirebaze,

jerjerobiT es gavlena umniSvneloa, Tumca arsebobs warmatebuli

saqmianobis ramdenime precendentic. magaliTad, rusTavis mzrunvelobas

moklebul bavSvTa saxlSi gamefebuli korufciisa da Tanxebis aramiznobivi

xarjvis faqti arasamTavrobo organizaciebis wyalobiT centraluri mediis

yuradRebis centrSi moeqca, rasac sazogadoebrivi aRSfoTebis iseTi

talRa mohyva, rom direqtori Tanamdebobidan gaaTavisufles da mis

winaaRmdeg sisxlis samarTlis saqme aRiZra.

5. sazogadoebis monawileoba

a. zogadi daxasiaTeba

sazogadoebasTan urTierTobis meqanizmebis SerCevis TvalsazrisiT meriis

xelmZRvaneloba Ziebis procesSia. es, ZiriTadad, exeba meriaSi

sazogadoebasTan urTierTobis struqturuli erTeulis formis sakiTxs. am

sferoSi SedarebiT pasiuria sazogadoebasTan urTierTobis formebis Ziebis

procesi. moqalaqeebTan urTierTobis ZiriTadi forma, romelic

komunisturi periodidan gadmovida, mosaxleobaSi perioduli gasvlaa.

ewyoba merisa da misi moadgileebis Sexvedrebi mosaxleobasTan wylis,

komunaluri momsaxurebisa da sxva sakiTxebTan dakavSirebiT.

meriis aparatis saqmianobaSi aSkarad dadebiTi roli Seasrula misma

teqnikurma uzrunvelyofam (msoflio bankis grantis farglebSi).

mniSvnelovnadaa gaiolebuli dainteresebul pirTa momsaxureba Sida qselis

arsebobis pirobebSi.

am progresis paralelurad seriozuli stagnaciaa adamianuri resursebis

marTvis sferoSi. Zveli sakadro politika, kadrebis marTvis moZvelebuli

menejmenti (kadrebis dakompleqteba, Sefasebis sitemis ararseboba) sakmaod

aferxebs kadrebis mozidvis process. vakansiis Sevsebis ZiriTadi resursi

Sida gadaadgilebebia, konkursis pirobebSi kadrebis mozidvis precedenti

ki jerjerobiT ar dafiqsirebula.

sakadro sferosTan SedarebiT meriis saqmianobis sferoSi sakmaod

mowesrigebulia administraciuli mxare. meriis gadawyvetilebis miRebis

sferoSi seriozuli Seferxebebi ar arsebobs, Tumca naklebadaa

gamoyenebuli damoukidebeli iuridiuli eqspertiza.

fanansebis simwiris periodSi miRebuli gadawyvetilebebis sajarooba,

ZiriTadad, stendze gamokvriT da periodulad qalaqSi gamomaval gazeTSi

gamoqveynebiT xorcieldeba.

SedarebiT naklebia miRwevebi sazogadoebasTan urTierTobis kuTxiT.

sazogadoebasTan urTierTobaze pasuxismgebelia meriis aparati da vice-

meri. specialuri struqturuli erTeuli amisTvis gamoyofili ar aris.

22

pasiur da arcTu ukonfliqto saxes atarebs meriis urTierToba

adgilobriv masmediasTan. urTierToba, rogorc wesi, adgilobrivi

televiziis - "qvemo qarTlis telekompania – IV arxi" (qalaqis ZiriTadi

sainformacio wyaro) - da meriis urTierTbraldebebis fonze warimarTeba.

sakmaod iSviaTia urTierToba dedaqalaqis masmediis saSualebebTan (merias,

ZiriTadad, gazeTebis adgilobriv korespondentebTan aqvs urTierToba).

arasamTavrobo organizaciebTan TanamSromlobas ara aqvs raime

institucionalizebuli forma, Tumca amis calkeuli magaliTebi mainc

arsebobs. aRniSvnis Rirsia "rusTavis samoqalaqo ganviTarebis centris" da

meriis TanamSromloba biujetis gamWvirvalobis sakiTxebTan dakavSirebuli

proeqtis farglebSi.

meriaSi aSkarad ganicdian sazogadoebasTan efeqturi urTierTobis

meqanizmebis Sesaxeb codnis deficits. am mimarTulebiT codnis SeZenis

mizniT meriis xelmZRvaneloba mzad aris, iTanamSromlos nebismier

organizaciasTan, romelic sakuTar mxardaWeras SesTavazebs.

meriis aparatSi xdeba moqalaqeTa momarTvebis, saCivrebis gaanalizeba.

aRmoCnda, rom moqalaqeTa mimarTvebis 5-6% ar exeba merias. rogorc Cans,

moqalaqeebma ar ician, vis unda mimarTon maTTvis saintereso ama Tu im

sakiTxze (samxedro komisariats, sasamarTlos Tu sxv.). meriaSi Semosuli

momarTvebis didi nawili ZiriTadad socialuri da yofiTi xasiaTis

problemebs exeba.

faqtobrivad aranairi formiT ar xdeba problemebis Sesaxeb sazogadoebrivi

azris kvleva. urTierTobebi spontanuri xasiaTisaa da maT arCevnebis

periodSi an krizisul situaciebSi mimarTaven, isic yovelTvis ara

(pensionerTa aqciebi, mosaxleobis mier gzebis gadaketva eleqtroenergiis

an gazis miwodebis moTxovniT).

meriis normatiuli da individualuri samarTlebrivi aqtebis miRebis dros

xSiria iuridiuli kazusebi. miRebuli gadawyvetilebebi SeiZleba ar

Seesabamebodes arsebul kanonmdeblobas, ramac SeiZleba gamoiwvios amgvari

sakiTxebis sasamarTloSi gasaCivreba. meriis warmomadgenlis gancxadebiT am

situaciis safuZvels qmnis sakanonmdeblo bazaSi arsebuli winaaRmdegobani

da gaurkvevloba; bevria urTierTgamomricxavi aqti. gadawyvetilebis

gauqmebis ufleba aqvs sakrebulos da sasamarTlos, Tumca meriaSi jer ar

yofila aseTi SemTxveva. meriis saerTo xasiaTis gadawyvetilebebi da sxva

dokumentebi registraciaSi tardeba da eqspertizas gadis iusticiis

saministroSi, romelsac, ramdenime SemTxvevis garda, seriozuli SeniSvnebi

ar hqonia.

b. procedurebi

23

qalaq rusTavis meriis aparatis SemadgenlobaSi sazogadoebasTan

urTierTobaze pasuxismgebelobis mqone struqturuli erTeuli ar

arsebobs. es funqcia danawevrebulia saqmianobaTa tipis mixedviT da

gadanawilebulia pasuxismgebel pirebs, samsaxurebsa da SezRuduli

pasuxismgeblobis sazogadoebas Soris. meriis sazogadoebasTan urTierTobis

ZiriTadi mimarTulebebi qalaqis meris mier ganisazRvreba.

rusTavis meriaSi sajaro informaciis gacemaze pasuxismgebeli piri

aparatis ufrosia. arsebobs agreTve moxele, romelic axdens informaciis

gacemis teqnikur uzrunvelyofas. meriaSi arsebul sainformacio stendze

miTiTebulia, rom es ori pirovneba aris sajaro informaciis gacemaze

pasuxismgebeli. sajaro informaciis gacema xdeba aparatis ufrosis

saxelze moqalaqis an organizaciis mier wardgenili gancxadebis an

werilis safuZvelze. werili aparatis ufrosis mdivans bardeba, Sedis

aparatis xelmZRvanelTan, masze ideba rezolucia da egzavneba teqnikur

Semsrulebels. meriidan informaciis gamoTxovisas arsebobs teqnikuri

xasiaTis Seferxebebi (kopieris mwyobridan gamosvla da a.S.).

meris miRebis dRe orSabaTia. miReba dilis operatiuli TaTbiris Semdeg

iwyeba. msurvelebi miRebaze winaswar ewerebian. raodenoba SezRudulia 50

kacamde. miRebisas meris yvela moadgile da samsaxuris xelmZRvaneli

adgilzea da Sesabamis sakiTxebze reagirebas axdens. maTi gadanawileba

xdeba yvela samsaxurze.

mTxovnelTa umetesoba materialur daxmarebas iTxovs. daxmareba gaicema

meriis sarezervo fondidan sakrebulos mier damtkicebuli biujetiT,

Tumca es Tanxebi limitirebulia.

adgilobrivi TviTmmarTvelobis SenobaSi ucxo pirisaTvis rTulia

orientacia. kabinetebi ar aris danomrili da arc Senobis gegmaa

gamokruli TvalsaCino adgilas. aseve ar aris gamokruli moxeleTa sia,

dakavebuli Tanamdebobebi, telefonebi. moqalaqeTa miRebis dReebi uSualod

Tanamdebobis pirTa kabinetTan aris miTiTebuli, Tumca ar aris gamokruli

arc miRebaze Caweris zusti procedura da arc moqalaqeTa saCivrebisa da

gancxadebebis ganxilvis wesi da vadebi. sajaro informaciis gacemaze

pasuximgebeli moxelis vinaoba mxolod meore sarTulis derefanSia

gamokruli, Tumca romel kabinetSia SesaZlebeli misi naxva, miTiTebuli ar

aris.

sakrebulos sxdomebis gamarTvis winaswari grafiki sazogadoebisaTvis

miuwvdomelia. sakrebulos konkertuli sxdomis gamarTvis Sesaxeb cnoba,

rogorc wesi, ikvreba wina dRes, mxolod adgilobrivi TviTmmarTvelobis

SenobaSi, isic mesame sarTulis derefanSi, sakrebulos samuSao oTaxebTan.

mTavrobis sxdomis gamarTvis Sesaxeb informacia winaswar saerTod ar

qveyndeba. rac Seexeba dRis wesrigs, arc sakrebulos da arc mTavrobis

sxdomis dRis wesrigi winaswar arasodes ar qveyndeba.

24

xSirad, rodesac romelime samsaxuri amzadebs dokuments sxva

samsaxurisTvis gadasacemad, Tavissave Seqnili dokumentis pirs ar itovebs,

amitom dokumentis miReba gamcem instanciaSi SeuZlebeli xdeba da saWiroa

misi kvalis gayola.

eleqtronuli saxiT mxolod dokumentebis nawili arsebobs da isic

sxvadasxva adgilas Aaris gabneuli. sakrebulos dadgenilebebi ZiriTadad

nabeWdi saxiT inaxeba sxvadasxva ganyofilebebSi da maTi Tavmoyra metad

Znelia.

g. gamWvirvaloba

qalaqis meria sakmaod pasiuria mosaxleobis winaSe angariSgebis

TvalsazrisiT. meriis saqmianobis angariSgeba weliwadSi erTxel

xorcieldeba meriis gafarToebuli sxdomis saxiT. moqalaqeTa winaSe

angariSgebas ZiriTadad sareklamo xasiaTi gaaCnia da mniSvnelovan periods

ukavSirdeba (magaliTad, arCevnebs). saerTod, moqalaqeTa CarTvis masStabebi

sakmaod mcirea, risi erT-erTi mizezic, meriis dabali aqtiurobis

paralelurad, realurad moqmedi adgilobrivi arasamTavrobo

organizaciebis raodenobrivi simwire da pasiurobaa.

kanonis Tanaxmad, sajaro informacia unda gaices dauyovnebliv an 10 dRis

ganmavlobaSi, Tuki informacia damuSavebas moiTxovs. rusTavis

sainformacio centris muSaobis praqtika gviCvenebs, rom es vadebi mudmivad

irRveva. magaliTad, miwis marTvis sammarTvelom sakuTrebaSi gadasacemi

miwis Sesaxeb informacia gasca moTxovnidan mxolod 40 dRis Semdeg.

advili warmosadgenia, rom Tu arasamTavrobo organizaciebs da interesTa

Zlier jgufebs informaciis mosapoveblad mizanmimarTuli muSaobis 2 Tve

sWirdebaT, ramdenad rTulia informaciis miReba rigiTi moqalaqisTvis.

sajaro informacia yvelasTvis Tanabrad sajaro ar aris. arasamTavrobo

organizaciebma ramdenjerme Caatares monitoringi fizikuri piris saxeliT

Setanil gancxadebebze informaciis gacnoba-miRebaze. rogorc aRmoCnda,

aseT SemTxvevaSi procedura irRveoda da pasuxic igvianebda. informaciis

mopoveba gacilebiT martivia organizaciebisTvis da masmediis

warmomadgenlebisTvis, anu maTTvis, vinc icis kanonmdebloba da iyenebs mas.

Tumca aqve davZenT, rom sajaro informaciis miuReblobis gamo

sasamarTlosTvis jerjerobiT aravis miumarTavs.

meriis sazogadoebasTan urTierToba, ZiriTadad, masmediis saSualebiT

xorcieldeba. televiziasTan da gazeT "rusTavTan" dadebuli

xelSekrulebis Tanaxmad, meriis informacia regularulad gadis

sainformacio gadacemis eTerSi (Tumca imave xelSekrulebis Tanaxmad,

televizias SeuZlia nebismier momentSi uari Tqvas siuJetebis gaSvebaze).

gazeTis informaciebi, ZiriTadad, meriis mier ganxorcielebul RonisZiebebs

25

asaxavs da miznad isaxavs meriis da misi saqmianobis popularizacias,

gansxvavebiT satelevizio siuJetebisagan, romlebic, rogorc wesi,

kritikuli xasiaTisaa. gazeTSi qveyndeba sakanonmdeblo baza,

gadawyvetilebebi, mimarTvebi, meriis mier gaweuli xarjebis nusxa.

municipalitetebis saSualebiT centri awyobs meris da misi moadgileebis

Sexvedrebs mosaxleobasTan, romlebic iseT aqtualur sakiTxebs

ukavSirdeba, rogoricaa: wyliT momarageba, qalaqis komunaluri meurneobis

saqmianoba, sapensio momsaxureba. meriaSi konfliqturi situaciebis

gadawyvetas adgilze cdiloben. xuTSabaTobiT igegmeba tradiciuli

gasvliTi Sexvedrebi. yvela samsaxuris xelmZRvaneli gadasaWreli

problemebis nusxiT adgilebze gadis da mosaxleobas xvdeba, rasac xSirad

sakmaod mwvave kamaTi mosdevs, Tumca, imavdroulad, aseTi Sexvedrebi

daZabuli situaciis ganmuxtvis karg saSualebadac aris miCneuli (meriis

warmomadgenlis Sefaseba).

sakrebulos sxdomebisgan gansxvavebiT meriis sxdomebi, meriis debulebis

Tanaxmad, daxurulia, Tumca zogjer iwveven Jurnalistebsa da

arasamTavrobo organizaciebis warmomadgenlebs.

televizias periodulad problemebi eqmneba intervius Cawerisas, radgan

respodentebi Tavs arideben gadaRebas. meriis orSabaTis sxdomebze xSirad

gaismis sayveduri televiziis misamarTiT kritikuli siuJetebis gamo.

meriaSi miiCneven, rom televizia mxolod negatiuri Temebis ZiebaSia da

faqtebs araobieqturad, calmxrivad aSuqebs. tradiciuli Temebia:

eleqtroenergia, wyali, pensiebi, rasac bolo periodSi miwisZvris

Sedegebic daemata. msgavi braldebebis sapasuxod televiziis

warmomadgenlebi miuTiTeben meriis tendenciaze, mxolod dadebiTi kuTxiT

warmoaCinos sakuTari saqmianoba. televiziaSi xSiria mosaxleobis zarebi.

rekaven nebismieri yofiTi problemis gamo. masmediis erT-erTi

warmomadgenlis TqmiT, sakmaod xSiria SemTxvevebi, rodesac televiziis

Carevamde konkretuli problemisadmi interess aravin iCens.

sakrebulos met yuradRebas imsaxurebs interesTa jgufebisgan Semosuli

werilebi an saCivrebi (magaliTad, metalurgiuli kombinatis muSa-

mosamsaxureTa saCivrebi kombinatis xelmZRvanelobis an investorebis

winaaRmdeg). unda aRiniSnos, rom am sakiTxebiT garkveul dainteresebas

zogjer sakrebulos wevrTa biznes-interesi ganapirobebs. amis naTel

magaliTs 1998 wlis mowvevis sakrebuloSi vawydebiT, rodesac rusTavis

adgilobriv energogamanawilebel kompania "relasSi" arsebuli darRvevebis

mimarT leiboristuli fraqciis dainteresebas da sakrebulos sarevizio

komisiis mier prokuraturaSi masalebis gadagzavnas sakrebulos ori

wevris "relasis" sameTvalyureo sabWoSi daniSvna mohyva. amis Semdeg

sakrebuloSi "relasis" Tema minelda da bolos Sewyda kidec.

meriaSi damoukidebel eqspertebs ZiriTadad Sesrulebuli samuSaos

Sesafaseblad iwveven, magaliTad, auditoruli SefasebisTvis. arsebobs

26

sakonsultacio momsaxurebis erTeuli SemTxvevebi, romlis drosac

eqspertTan xelSekruleba formdeba. Tumca arasamTavrobo organizaciebi

periodulad araoficialur konsultacias uweven meriis iuristebs

administraciul kodeqsTan dakavSirebiT.

d. sazogadoebis ganwyoba

rusTavis sainformacio centris mier 2004 wlis 16 ianvars Catarebuli

sazogadoebrivi azris gamokiTxvis Sedegad kiTxvaze: endobiT Tu ara

sakrebulos? - dadebiTad upasuxa gamokiTxulTa 30%-ma, uaryofiTad -

59%-ma, sakrebulos met-naklebad endoba gamokiTxulTa 11%.

kiTxvaze: endobiT Tu ara merias? - pasuxebi Semdegnairad ganawilda:

dadebiTad upasuxa gamokiTxulTa 34%-ma, uaryofiTad - 53%-ma, merias

nawilobriv endoba gamokiTxulTa 13%.

cxr. 5. endobiT Tu ara adgilobriv

xelisuflebas (sakrebulos)

1- diax; 2-ara; 3-met-naklebad

30

59

11

1

2

3

cxr. 5. endobiT Tu ara adgilobriv

xelisuflebas (mTavrobas)

1 -diax; 2- ara; 3-met-naklebad

34

53

13

1

2

3

gamokiTxulTa 67% ar aris kmayofili qalaqis xelmZRvanelobis muSaobiT.

cxr. 6. kmayofili xarT Tu ara qalaqis

xelmZRvanelobis muSaobiT

1-diax; 2--ara; 3-met-naklebad

24

67

9

1

2

3

rogorc vxedavT, sakrebulos reitingi meriis reitingze dabalia, rasac

Tavisi mizezebi aqvs. rusTavis meris 2002 wlis arCevnebis Sedegad merab

tyeSelaSvils seriozuli konkurentebi ar hyolia da damajerebeli

27

gamarjveba moipova. sakrebulos arCevnebisas situacia gansxvavebuli iyo, is

maRali konkurenciiT gamoirCeoda da sxvadasxva informaciis Tanaxmad,

arCevnebis Sedegebi gayalbda.

miuxedavad amisa, sazogadoebis mniSvnelovani nawili sakrebulos, rogorc

warmomadgenlobiT organos, SedarebiT ufro demokratiuli gziT

formirebulad miiCnevs, vidre merias. amaze metyvelebs mSvidobis,

demokratiisa da ganviTarebis kavkasiuri institutis mier 2004 wlis

aprilSi Catarebuli gamokiTxvis monacemebi.

cxr. 7. qalaqis sabWo arCeuliademokratiuli principebis dacviT

cxr. 8. meri arCeulia demokratiuli principebis

dacviT

22.8

27.5

1 13

35.8

completely disagree don’t agree difficult to answer agree completely agree

rogorc vxedavT, miuxedavad imisa, rom sazogadoebis ndobis TvalsazrisiT

sakrebulos da qalaqis meris "sastarto" mdgomareoba gansxvavebuli iyo,

amJamad sazogadoebis ndobis xarisxi erTnairad Zalze dabalia - rogorc

adgilobrivi aRmasrulebeli, ise warmomadgenlobiTi xelisuflebis mimarT.

cxr. 9. sazogadoebis ndoba sakrebulosadmi

Zalzed maRalia

11.1 3.5 0.535.4

49.5

completely disagree don’t agree difficult to answer agree completely agree

28

cxr. 10. sazogadoebis ndoba merisadmi

Zalzed maRalia

17.8

17.81 17.8

45.5

completely disagree don’t agree difficult to answer agree completely agree

es imiTac aris ganapirobebuli, rom aRmasrulebel organoSi

arapopularuli an sazogadoebisaTvis dRemde ucnobi adamianebi darCnen. es

adamianebi jer kidev im droidan muSaobdnen qalaqis mTavrobaSi, rodesac

meris posti daniSvniTi iyo, Sesabamisad, maTSi sWarbobs mxolod merisadmi

da ara sakrebulos mimarT angariSvaldebulebis ganwyoba. Tumca

sazogadoeba, romelmac gasul wlebSi sakmaod didi imedgacrueba ganicada

demokratiuli institutebis mimarT, warmomadgenlobiTi organos

Sefasebisas ufro negatiuria, vidre administraciis Sefasebisas.

cxr. 11. sakrebulo angariSvaldebulia

sazogadoebis winaSe

13.3

69.4

0.56.110.7

Completely dissatisfied Partially don’t satisfied Difficult to answer

Partially satisfied Completely satisfied

cxr. 12. meria angariSvaldebulia

sazogadoebis winaSe

20.5

52.3

117.4

8.7

Completely dissatisfied Partially don’t satisfied Difficult to answer

Partially satisfied Completely satisfied

amave dros mosaxleobas urTierToba ZiriTadad administraciasTan uwevs.

ar aris gasakviri, rom aRmasrulebeli xelisuflebis profesionalizms

gamokiTxulTa ufro meti raodenoba aRiarebs, vidre warmomadgenlobiTi

organos wevrebisas.

29

cxr. 13. sakrebulos wevrTa profesionalizmi

14.1

54.3

1.516.1

14.1

Completely dissatisfied Partially don’t satisfied Difficult to answer

Partially satisfied Completely satisfied

cxr. 14. meriis TanamSromelTa

profesionalizmi

28.6

32.71.525.6

11.6

Completely dissatisfied Partially don’t satisfied Difficult to answer

Partially satisfied Completely satisfied

Tavis mxriv, sakrebulo pasiurobas avlens da arakritikulad udgeba

adgilobrivi mTavrobis saqmianobas, romlis muSaobac calkeuli socialuri

jgufebis mxridan perioduli da zogjer mwvave kritikis sagani xdeba.

e. sazogadoebis gaaqtiurebis precedenti

SeimCneva gasuli saukunis 90-ian wlebSi (gansakuTrebiT mis meore

naxevarSi) gamefebuli apaTiis daZlevis survili. amis naTel magaliTs

2002 wlis 2 ivnisis municipaluri arCevnebi warmoadgens.

rogorc samoqalaqo sazogadoebis nawili, ise damoukidebeli eqspertebi

aRniSnuli arCevnebisadmi mosaxleobis damokidebulebis gamovlenas

gardatexis dasawyisad miiCneven. marTlac, 2002 wlis arCevnebi ramdenime

mniSvnelovani - rogorc dadebiTi, ise uaryofiTi - niSniT gansxvavdeba

winare arCevnebisagan.

uaryofiTi momentebi. bolo periodSi Catarebuli yvela sxva arCevnebisagan

gansxvavebiT (1995 da 1999 saparlamento, 1998 municipaluri da 2000

saprezidento), 2002 wlis arCevnebi gamoirCeoda araorganizebulobis

ufro didi xarisxiT. SeiZleba Tamamad iTqvas, rom es iyo yvelaze

araorganizebuli arCevnebi bolo 10 wlis ganmavlobaSi.

dadebiTi momentebi. miuxedavad zemoTqmulisa, gamoikveTa ramdenime

Tvisobrivad axali tendencia:

30

politikuri partiebis umetesobam, upirveles yovlisa, im partiebma,

romlebmac warmatebas miaRwies, wina arCevnebTan SedarebiT ufro

organizebulad warmarTes saarCevno kampania da garkveuli programebi

wamoayenes, rac adre naklebad xdeboda. sxvadasxva politikuri Zalis

qmedebebma aCvena, rom saqarTveloSi mimdinareobs iseT politikur

ZalTa formirebis procesi, sadac klanuri interesebisa da

qarizmatuli liderebis nacvlad wamyvan adgils politikuri

programebi ikaveben.

1999 da 2000 wlebis arCevnebTan SedarebiT procesebis monitoringSi

ufro aqtiurad iyvnen Cabmuli samoqalaqo organizaciebi. am

ukanasknelTa interesi da sazogadoebriv azrze zemoqmedebis xarisxi

marTalia mcired, magram mainc gaizarda. amave dros gaizarda rogorc

monitoringSi monawile organizaciebis raodenoba, ise maTi

organizebulobisa da kvalifikaciis donec.

yvelaze mniSvnelovani faqtori, riTac 2002 wlis 2 ivnisis arCevnebi

winamorbedi arCevnebisagan gansxvavdeba, aris amomrCevelTa aqtivobis

mniSvnelovani zrda. marTalia, es sazogadoebis nawils exeba da ara

mTel mosaxleobas, magram progresi aSkarad saxezea. damoukidebel

damkvirvebelTa mier Catarebuli paraleluri daTvlis monacemebiT,

arCevnebSi monawileoba miiRo amomrCevelTa 60.1 %-ma. Tu 2000 wlis

saprezidento arCevnebis periodSi saarCevno ubnebi faqtiurad carieli

iyo da oficialuri monacemebi mosaxleobis daax. 2/3-is arCevnebSi

monawileobis Sesaxeb aSkarad falsificirebulia, 2002 wlis

municipalur arCevnebSi monawileTa ricxvi axlos dgas realobasTan.

6. rekomendaciebi

sasurvelia Camoyalibdes sazogadoebasTan urTierTobis samsaxuri, sadac

gaerTiandeba sazogadoebasTan urTierTobis sferoSi meriaSi ukve

arsebuli komponentebi, moxdeba maTi srulyofa da axali

mimarTulebebis amoqmedeba;

sazogadoebasTan urTierTobis samsaxuris saqmianoba sami mimarTulebiT

unda warimarTos: masmediasTan urTierToba; moqalaqeebTan,

sazogadoebriv organizaciebTan da sxva interesTa jgufebTan

urTierToba; monitoringi da rekomendaciebis SemuSaveba.

masmedia ufro aqtiurad unda CaerTos samoqalaqo aqtiurobis

procesSi;

arasamTavrobo organizaciebTan urTierToba unda xorcieldebodes

rogorc maTi, ise adgilobrivi TviTmmarTvelobis iniciativiT. Zalze

mniSvnelovania, rom am urTierTobas mxolod "moduri" xasiaTi ar

hqondes. amis Tavidan asacileblad saxelmwifo struqturam da

arasamTavrobo organizaciebma sakiTxTa is sferoebi unda gamonaxon,

romlebSic TanamSromloba realurad nayofieri iqneba;

mZime socialuri mdgomareobis fonze moqalaqe pasiuria, amdenad

saWiroa misi aqtiurobis waxaliseba;

donorebma unda waaxalison samoqalaqo iniciativaTa ganxorcieleba.

31

saxelisuflebo struqtura SeZlebisdagvarad unda axorcielebdes

mosaxleobis ganwyobis gamorkvevis mizniT sazogadoebrivi azris

Seswavlas (mizanSewonilia iafi da operatiuli meTodis - satelefono

gamokiTxvebis gamoyeneba);

centraluri aRmasrulebeli da sakanonmdeblo xelisufleba aqtiurad

unda iyos CarTuli regionebidan angariSebis miRebisa da monitoringis

Sedegebis analizis procesSi;

erT-erT umTavres amocanad unda iqces wlis dasawyisSi meriis

samsaxurebis mier warmodgenili samoqmedo gegmebis SemuSavebaSi

sazogadoebis CarTvis da monawileobis uzrunvelyofa (Sesabamisi

sferos arasamTavrobo organizaciebi, dainteresebuli moqalaqeebi).

sferoebis mixedviT prioritetTa win wamosawevad SesaZlebelia

satelevizio diskusiebis mowyoba. am procesis ganuyofel nawilad unda

iqces wlis bolos sferoTa mixedviTYmosaxleobis winaSe angariSis

wardgena.

meriis mier gadawyvetilebis miRebis sferoSi mniSvnelovnad gvesaxeba

damoukidebeli eqspertizis gamoyenebis praqtikis danergva.