eqspertis azri

kaxa gogolaSvili

avtorebi: vahan asatriani, arpine karapetiani,

arzu abdulaeva, Tamar pataraia

korufciis winaaRmdeg brZola samxreT kavkasiaSi: somxeTis, azerbaijanis

da saqarTvelos magaliTebi

ÓÀØÀÒÈÅÄËÏÓ ÓÔÒÀÔÄÂÉÉÓÀ ÃÀ ÓÀÄÒÈÀÛÏÒÉÓÏ ÖÒÈÉÄÒÈÏÁÀÈÀ ÊÅËÄÅÉÓ ×ÏÍÃÉGEORGIAN FOUNDATION FOR STRATEGIC AND INTERNATIONAL STUDIES

2015

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publikacia daibeWda amerikis SeerTebuli Statebis saelCos finansuri mxardaWeriT.

kvleva, romlis Sedegebic asaxulia winamdebare publikaciaSi, dafinansda evrokavSiris meSvide CarCo programis (FP7/2007-2013)

mier N° 613354 – CASCADE-is proeqtis (FMSH, parizi) sagranto xelSekrulebis safuZvelze.

redaqtori: rusudan margiSvili

teqnikuri redaqtori: artem meliq-nubarovi

saavtoro uflebebi daculia da ekuTvnis saqarTvelos strategiisa da saerTaSoriso urTierTobebis kvlevis fonds. werilobiTi nebarTvis gareSe wignis arc erTi nawili ar SeiZleba gadaibeWdos nebismieri,

maT Soris, eleqtronuli an meqanikuri formiT.

© saqarTvelos strategiisa da saerTaSoriso urTierTobaTa kvlevis fondi 2015 weli

ISSN 1512-4835 ISBN 978-9941-0-8156-9

Sesavali

somxeTi, azerbaijani da saqarTvelo, rodesac da-moukidebeli saxelmwifoebi gaxdnen, 1992 wels, Tanabar sawyis mdgomareobaSi iyvnen demokratiis tradiciis, kanonis uzenaesobisa da mmarTvelobis TvalsazrisiT. 10 wlis Semde-gac samive qveyana mmarTvelobis sferoSi erTnairi proble-mebis winaSe idga1 da saerTaSoriso Tanamegobrobas, pirvel rigSi ki, evropis qveynebs, miaCndaT, rom maT politikuri modernizaciis met-naklebad Tanabari Sansebi hqondaT. evro-pis sabWos wevroba samive qveyanas `avansad~ mieca im pirobiT, rom isini evropuli konvenciebis suliskveTebas daicavd-nen da Sesabamisi organoebis mkacr monitorings daeqvemde-barebodnen. kidev erTi maCvenebeli imisa, rom saqarTvelos, somxeTisa da azerbaijanis politikuri ganviTarebis done erTnairad fasdeboda, is egalitaruli, ufro sworad ki, universalisturi midgoma iyo, romelic evrokavSirma am sam qveyanasTan TanamSromlobisTvis airCia da 1996 wels maTTan partniorobisa da TanamSromlobis praqtikulad identuri xelSekrulebebi gaaforma (romlebic ZalaSi 1999 wels Se-vida). im dros saqarTveloSic da samxreT kavkasiis danarCen or saxelmwifoSic korufcia yvaoda.

samxreT kavkasiis saxelmwifoebis Sesaxeb uaxloesi warsulis martiv paradigmas Semdegi varaudebi amyarebda:

• es regioni demokratiuli samyarosgan saukuneebis man-Zilze iyo izolirebuli da amitom demokratiasa da ko-rufciisgan Tavisufal karg mmarTvelobaze moTxovna Za-lian sustia.

• sustia institutebis mxardaWeris meqanizmebi _ es Raribi qveynebia, maTi mTavrobebi _ gamoucdeli, xolo efeqtiani monitoringisa da demokratiuli kontrolis meqanizmebi ar arsebobs.

• mmarTveli Zala ar aRiarebs kavSirs, erTi mxriv, ganviTa-rebasa da, meore mxriv, Rirebulebebis danergvasa da maT pativiscemas Soris.

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aSkaraa, rom bolo aTi wlis ganmavlobaSi adminis-traciuli korufciis aRmofxvris saqmeSi am sami qveynis Za-lisxmeva mniSvnelovnad gansxvavdeboda erTmaneTisgan da, Se-sabamisad, arsebiTia maT Sedegebs Soris gansxvavebac, razec SeiZleba vimsjeloT sxvadasxva wyaros mixedviT.

saqarTvelom TvalSisacem winsvlas miaRwia wvrili ko-rufciis winaaRmdeg brZolasa da sajaro cxovrebis yvela sferoSi korufciis SemcirebaSi. 2014 wlis korufciis aRq-mis indeqsis mixedviT, saqarTvelo 50-e adgilzea 175 qveya-nas Soris, rac imas niSnavs, rom qveyana liderobs farTo regionSi, romelic aRmosavleT evropas, TurqeTsa da dasav-leT balkaneTsac moicavs.2 imave indeqsis Tanaxmad, somxeTi da azerbaijani, Sesabamisad, 94-e da 126-e adgilebs ikaveben. 10 wlis win, anu 2003 wels, reitingis igive sistema somxeTs 78-e, xolo saqarTvelos da azerbaijans 124-e (azerbaijans odnav ukeTesi qulebi hqonda) adgilebs aniWebda.3

rogorc vxedavT, somxeTisa da azerbaijanis qulebi gauaresda, xolo saqarTvelos STambeWdavi winsvla aqvs. aSkaraa, rom qveynebSi, sadac sazogadoebrivi moTxovna sus-tia korufciasTan brZolis institutebze, arsebiTi mniSv-eloba aqvs saerTaSoriso zewolas elitebze, rom maT re-formebi Caataron. evrokavSiris da evropis sabWos Sesabamisi instrumentebi, aseve, ormxrivi da mravalmxrivi sxva dax-mareba (aSS-is mTavrobisgan, msoflio bankisgan, evropis rekonstruqciisa da ganviTarebis bankisgan da sxv.), ro-melic, zog SemTxvevaSi, garkveuli pirobebiT gaicemoda, TiTqmis Tanabrad gamoiyeneboda saqarTvelos, somxeTisa da azerbaijanis mimarT, Tumca am sami qveynis gansxvavebulma politikurma konteqstebma _ sworma nebam, sazogadoebrivma mxardaWeram da sajaro politikam _ gansxvavebuli Sedegebi gamoiRo, rac qvemoT aris aRwerili.

mTavari mignebebi da rekomendaciebi

korufciasTan brZolaSi sruli warmatebisTvis samxreT kavkasiis arc erT qveyanas ar miuRwevia. politikuri pluralizmi, Tavisufali media da samoqalaqo sazogadoebis aqtiuri monawileoba am regionSi korufciasTan efeqtiani

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brZolis winapirobebs warmoadgens. amasTan, es sami qveyana Zalian gansxvavdeba erTmaneTisgan miRweuli progresisa da jerac Sesasrulebeli amocanebis TvalsazrisiT.

somxeTi

miuxedavad imisa, rom dokumenti saetapo iyo, 2003 wels miRebuli somxeTis pirveli antikorufciuli strategia da samoqmedo gegma ar moicavda gazomvad miznebsa da amo-canebs.

2009-2012 wlebis meore antikorufciuli strategiiTa da samoqmedo gegmiT gaumjobesda sakanonmdeblo baza da Seiqmna korufciasTan brZolis instituciuri sistema.

qveyanas hqonda mniSvnelovani winsvla korufciasTan brZo laSi, saerTaSoriso TanamSromlobisa da korufciis kriminalizebis TvalsazrisiT.

saWiroa somxeTma ufro efeqtianad imoqmedos, raTa mi-aRwios politikuri dafinansebis gamWvirvalobas, gaaum-jobesos ndoba marTlmsajulebis sistemis mimarT da ufro aqtiurad CarTos am procesSi samoqalaqo sazoga-doeba.

evrokavSirTan asocirebisgan distancirebam Sedegad SesaZ loa korufciasTan brZolis survilis faqtobrivi SezRudva moitanos.

am konteqstSi, evrokavSirma unda gaaZlieros dialogi mTavrobasa da samoqalaqo sazogadoebas Soris da xeli Seuwyos samoqalaqo sazogadoebis ganviTarebas, rogorc korufciasTan brZolis erT-erT mTavar faqtors.

evrokavSirma aseve unda gamoiyenos evropis samezoblo politika, aRmosavleTis partnioroba, vizaliberaliza-ciis dialogi da TanamSromlobis yvela sxva arsebuli formati imisaTvis, rom somxeTSi korufciasTan aqtiuri brZola da misi monitoringi ganxorcieldes.

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azerbaijani

azerbaijanma miiRo korufciasTan brZolis saxelmwifo programa (2004 wels), 2005 wels Seqmna korufciasTan brZo lis saxelmwifo komisia da cvlilebebi Seitana sisx-lis samarTlis kodeqsSi qrTamis kriminalizebis mizniT.

aRsaniSnavia, rom antikorufciuli zomebi mxolod SerCe-viT ganxorcielda.

azerbaijani ufro sistemuri problemebis winaSe dgas, umetesad kanonebisa da regulaciebis efeqtiani ganxor-cielebis kuTxiT.

SerCeviTi samarTali da gavlenisa da Tanamdebobebis mo-sapoveblad daufaravi vaWroba arTulebs sajaro ins-titutebisadmi ndobis gaCenas. bolo dros samoqalaqo sazogadoebis winaaRmdeg ganxorcielebulma represiebma ki seriozulad imoqmeda samoqalaqo sazogadoebis SesaZ-leblobebze, rom efqtianad ebrZolon korufcias.

evrokavSirTan integrirebisadmi azerbaijanis limitire-buli miswrafebis gaTvaliswinebiT, evrokavSiris gavlena qveyanaSi sustia.

korufciasTan brZolaze sazogadoebis dabali moTxovna mmarTvelobaSi mudmiv problemebs ganapirobebs.

kidev erTi negatiuri faqtoria navTobis/gazis mopove-biT miRebuli maRali Semosavlebi, romlebic sxvadasxva meqanizmis meSveobiT mosaxleobis mniSvnelovan nawilamde aRwevs da mas sistemis xarvezebisadmi Semwynarebels xdis. es ki qveyanaSi samoqalaqo sazogadoebis kritikas simw-vaves ukargavs.

mniSvnelovania, rom evrokavSirma, azerbaijanTan Tanam-Sromlobis jer kidev arsebuli formatebis gamoyenebiT, xeli Seuwyos mTavrobasa da samoqalaqo sazogadoebas So-ris aqtiuri dialogis damyarebas da ufro gaaZlieros damoukidebeli arasamTavrobo organizaciebi, raTa maT korufciis monitoringi sazogadoebis yvela segmentSi ganaxorcielon.

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am konteqstSi regionulma Sejibrma SesaZloa sasargeb-lo roli iTamaSos, risTvisac saqarTvelo korufciasTan brZo lis magaliTad gamodgeboda.

saqarTvelo

miuxedavad imisa, rom 2001 wels saqarTveloSi antikoruf-ciuli politikis koordinirebis sabWo Seiqmna, raime mniSvnelovani progresi xelisuflebis vardebis revolu-ciiT Secvlamde ar yofila.

vardebis revoluciis Semdeg axalma xelisuflebam ko-rufciasTan brZolis erovnuli politika SeimuSava, rom-lis antikorufciuli strategiebi (Sesabamisi samoqmedo gegmebiT) 2005 da 2010 wlebSi iqna miRebuli.

amis Sedegi iyo mniSvnelovani winsvla, romelic RonisZie-bebis farTo speqtris ganxorcielebam moitana (magaliTad, sapatrulo policiis reforma, sagadasaxado reformebi da maTi aRsruleba, saxelmwifo Sesyidvebis reforma).

mTavari sakiTxebi kvlavac saWiroebs gaumjobesebas, maga-liTad, marTlmsajulebis sistemis dabali done, proku-raturaze zedamxedvelobis nakleboba da arCevnebidan arCevnebamde mTavrobis angariSvaldebulebis dabali done.

qveyanaSi korufciasTan brZolis gaZlierebas xels uw-yobs evrokavSirTan integraciisaken swrafva, romelic, Tavis mxriv, moiTxovs monitoringsa da dasaxuli miznebis droulad miRwevas.

qvemoT mogvyavs korufciasTan dakavSirebuli sami magaliTi, damyarebuli somxeTis, saqarTvelosa da azer-baijanis politikis dargis mecnierebis kvlevaze. Tavad es kvle va warmoadgens am sam qveyanaSi korufciasTan dakavSire-buli ZiriTadi sakiTxebisa da antikorufciuli politikis evoluciis Rrma analizs.

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somxeTi

damoukidebel saxelmwifoTa Tanamegobrobis (dsT) sxva qveynebTan SedarebiT, somxeTs ukeTesi qulebi aqvs ko-rufciis TvalsazrisiT arsebuli zogadi donis mixedviT, Tumca mniSvnelovnad CamorCeba aRmosavleT evropisa da baltiispireTis qveynebs.4 somxeTma korufciasTan brZola strategiul prioritetad gamoacxada. qveyanam mravali val-debuleba aiRo politikuri valdebulebebisa da saerTa-Soriso konvenciebisa da xelSekrulebebis saxiT. erT-erTi yvelaze mniSvnelovani stimuli, romelic somxeTis mTavro-bas ufro aqtiuri reformirebisken ubiZgebs, evrokavSiris preferenciebis generalizebuli sistemis (GSP) pirobebia, romelic jer 2006-2008 wlebisTvis mieniWa da Semdeg, 2009 wlidan GSP+ reJimis saxiT gagrZelda, rac aris specialuri „stimulirebis meqanizmi mdgradi ganviTarebisa da kargi mmarTvelobis dasamyareblad evrokavSiris 2009-2011 wlebis GSP regulaciis mixedviT“.5 evrokavSiris 2012 wlis regu-laciiT pirobebis kidev ufro rTuli meqanizmi SemoiRes, romelic moiTxovda adamianis 27 ZiriTadi saerTaSoriso uflebis, Sromis uflebisa da mdgradi ganviTarebisa da kar-gi mmarTvelobis sxva konvenciebis Sesrulebas axali, Zalian mZlavri preferenciuli reJimis sanacvlod, riTac somxeTi 2014 wlidan sargeblobs. marTlac, imis gaTvaliswinebiT, rom GSP+ reJimis vada 2017 wels iwureba, somxeTma maqsimalu-rad unda isargeblos am reJimiT, Tumca somxeTis ekonomiki-sa da somexi xalxis keTildReobisTvis aseTi sasicocxlod mniSvnelovani SesaZlebloba didwilad aris damokidebuli somxeTis mier nakisri valdebulebebis, kerZod ki, koruf-ciis winaaRmdeg gaeros konvenciis Sesrulebaze, romelsac somxeTma xeli 2005 wels moawera da pirveli sayovelTao, iuridiulad savaldebulo saerTaSoriso antikorufciuli instrumentis wevri gaxda.

kidev erTi mniSvnelovani instrumenti, romelic ev-rokavSirma somxeTs SesTavaza reformebis, maT Soris, kargi mmarTvelobis reformis dasaCqareblad, evropis samezoblo politikaa. 2006 wels evrokavSirma da somxeTma moiwones ev-ropis samezoblo politikis samoqmedo gegma, romelSic ko-

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rufciasTan brZola prioritetul sferod iyo gansazRvru-li. am sferosTan dakavSirebiT samoqmedo gegmaSi gawerili zomebi aZlierebs da detalurad aRwers im valdebulebebs, romlebic GSP+ reJimis pirobebSia CamoTvlili.6

somxeTis antikorufciuli strategiis ganviTarebis mokle Sefaseba

pirveli antikorufciuli strategia da samoqmedo gegma somxeTma 2003 wels SeimuSava. am antikorufciuli strategiisa da misi ganxorcielebis samoqmedo gegmis Sede-gebsa da aseve, korufciis donis saerTaSoriso maCvenebleb-ze dayrdnobiT gakeTebuli analizi 2003-2007 wlebis imaze miuTiTebs, rom antikorufciuli strategia da misi ganxor-cielebis samoqmedo gegma ar moicavda gazomvad an miRwevad miznebsa da amocanebs, ar iyos konkretul Sedegebze ori-entirebuli da specifikuri problemebis gadasaWrelad ar gauerTianebia sxvadasxva miRebuli zomis Sedegebi. miuxeda-vad amisa, is pirveli strategiuli dokumenti iyo da, ro-gorc aseTi, korufciasTan brZolis procesSi mniSvnelovan etaps warmoadgenda.

2009 wels somxeTis mTavrobam 2009-2012 wlebisTvis meore antikorufciuli strategia da samoqmedo gegma daamt-kica, romlebic Sesworebisa da konsultaciebisaTvis wa-rudgines iseT saerTaSoriso da adgilobriv dainteresebul mxareebs, rogorebicaa euTo, evrokomisia, aSS-is saerTaSor-iso ganviTarebis saagento da saerTaSoriso gamWvirvaloba (somxeTi).7 pirveli strategiisa da samoqmedo gegmisgan gan-sxvavebiT, meore strategia da gegma warudgines im saerTa-Soriso aqtorebs, romlebic qveyanas ZiriTad teqnikur dax-marebas uweven.

2009-2012 wlebis strategiasa da samoqmedo gegmaSi gaZ-lierda korufciasTan brZolis sajaro politikis ZiriTadi mimarTulebebi, gaumjobesda sakanonmdeblo baza da SemoRe-bul iqna antikorufciuli organoebis instituciuri siste-ma.8 2012 wlisaTvis, roca meore antikorufciuli strategia dasrulda, jerac ar iyo miRebuli strategiis axali doku-menti. iusticiis saministrom axali strategiisa da samoq-

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medo gegmis proeqti mxolod 2015 wlis maisSi9 gamoaqveyna. axali strategiis arqonis miuxedavad, somxeTma ko-

rufciasTan brZolis saqmeSi garkveul winsvlas miaRwia. 2011 wels somxeTi Ria mmarTvelobis partniorobas SeuerTda, riTac mzadyofna gamoxata, sajaro samsaxuris meti gamW-virvaloba da anagriSvaldebuleba uzrunveleyo. Ria mmarT-velobis partniorobis 2014 wlis angariSis Tanaxmad,10 som-xeTma warmatebiT Seasrula movaleobebi da valdebulebebi, romlebic 2012-2013 wlebis Ria mmarTvelobis partnioroba-somxeTis pirveli samoqmedo gegmiT iyo gaTvaliswinebuli. pirveli samoqmedo gegmis mTavari debulebebi fokusirebuli iyo sajaro administrirebis efeqtianobis, gamWvirvalobisa da angariSvaldebulebis gaumjobesebaze, kerZod, sajaro resursebis efeqtianobis zrdaze, Sida auditis sistemis gaumjobesebaze, informaciis met Tavisuflebaze da eleq-tronuli mmarTvelobis ganviTarebaze.11

2013 wlis 3 dekembers, evrokavSiris mxardaWeriT, som-xeTSi daiwyo axali proeqtis _ „tranzaqciuli eleqtronuli mmarTvelobis ganviTareba“ _ ganxorcieleba. es axali, eleq-tronuli somxeTis, iniciativa miznad isaxavda tranzaqci-uli eleqtronuli servisebis Seqmnas, somxeTis samoqalaqo reestris cifrul sistemaze gadasvlis procesis xelSewyo-bas da somxeTis moqalaqeebis uzrunvelyofas mTavrobasTan komunikaciis axali SesaZleblobiT.12 es SemTxveva gviCvenebs, rom sajaro dRis wesrigis arsebobis da antikorufciuli strategiis ararsebobis pirobebSic ki SesaZlebelia moqmedi mTavrobis politikisa da stereotipuli kulturis Secvla.

arsebuli viTareba

somxeTma ZiriTad saerTaSoriso konvenciebsa da xelSekrulebebsac moawera xeli da valdebuleba ikisra, rom korufcias yvela saSualebiT SebrZoleboda. antikorufci-ul standartebTan miaxloebisa da kargi praqtikis demon-strirebis mizniT somxeTi iseT sxvadasxva formats SeuerT-da, rogoricaa euTo-stambolis antikorufciuli samoqmedo gegma, saxelmwifoTa jgufi korufciis winaaRmdeg (GRECO) da Ria mmarTvelobis partnioroba. aRsaniSnavia, rom zemo-xsenebuli organoebis angariSebSi mocemuli rekomendaciebis

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Sesruleba sakmarisi iqneboda korufciis winaaRmdeg gaeros konvenciasTan Sesabamisobis uzrunvelsayofad.

somxeTi 2004 wlis ianvarSi SeuerTda saxelmwifoTa jgufs korufciis winaaRmdeg, Semdeg ki or konvencias _ ko-rufciis Sesaxeb sisxlis samarTlisa da samoqalaqo samarT-lis konvenciebs _ moawera xeli da moaxdina maTi ratifika-cia. korufciis winaaRmdeg saxelmwifoTa jgufis mier 2010 wels gamoqveynebuli Sefasebis meore angariSi13 moicavda 19 rekomendacias, romlebic emsaxureboda korufciasTan brZo-lis gzebis gaumjobesebas. rekomendaciaTa umetesoba exebo-da sxvadasxva kanonisa da proceduris miRebasa da gaumjobe-sebas korufciis sawinaaRmdego or sakiTxTan dakavSirebiT _ politikuri dafinansebis mxilebasa da gamWvirvalobas. rekomendaciebis Sesrulebis 2014 wels gamoqveynebul meore anagriSSi saxelmwifoTa jgufma korufciis winaaRmdeg ga-nacxada, rom „somxeTma damakmayofileblad Seasrula, anu damakmayofileblad gaarTva Tavi yvela 19 rekomendacias, romlebsac mesame raundis Sefasebis angariSi moicavda“.14 am angariSis Tanaxmad, somxeTma mniSvnelovani cvlilebebi Seitana sisxlis samarTlis kodeqsSi, raTa sicxade Seetana „bundovanebaTa umetesobaSi, maT Soris, gavleniT vaWrobis kriminalizebiT da sisxlis samarTlis konvenciis me-12 muxl-Tan dakavSirebuli somxeTis daTqmis Semdgomi uaryofiT“.15 gamWvirvaloba da angariSgeba gaumjobesda rogorc politi-kuri partiebis, ise saarCevno kampaniebis dafinansebasTan da-kavSirebiT. somxeTma miiRo axali saarCevno kodeqsi, SemoiRo savaldebulo auditi SedarebiT didi partiebisTvis da Seq-mna zedamxedvelobis da auditis mudmivmoqmedi samsaxuri.16 amave dros, aRniSnuli angariSi moicavda rekomendaciebs rigi kanonebis gasaumjobeseblad, gansakuTrebiT _ politi-kuri dafinansebis sferoSi. amasTan dakavSirebiT stambolis antikorufciuli samoqmedo gegmis somxeTis monitoringis angariSSi (2014 weli)17 euTom aRniSna, rom politikuri par-tiebis finansuri angariSebis gamWvirvalobis uzrunvelsayo-fad isini masmediasa da internetSi unda gamoqveyndes da an-gariSSi axali moTxovna Cado, gamoeqveynebinaT mxolod im partiebis auditirebuli angariSebi, romlebmac saxelmwifo dafinanseba miiRes. saarCevno kodeqsi aseve moicavs valde-

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bulebebs saarCevno kampaniebis dros moziduli fondebis da maTi xarjvis angariSgebis Sesaxeb. Tumca, angariSSi ar aris mocemuli raime iseTi informacia, romelic SesaZle-bels gaxdida politikosebis/maRali Tanamdebobis pirebis saqmianobaSi interesTa konfliqtTan da gamWvirvalobasTan dakavSirebiT progresi Sefasebuliyo. angariSSi samoqmedo gegmis samive ZiriTadi mimarTuleba (antikorufciuli poli-tika, korufciis kriminalizeba da korufciis prevencia) Se-fasebulia, rogorc nawilobriv Sesrulebuli da igi sakmaod bevr axal rekomendacias moicavs. gaeros narkotikebisa da danaSaulis winaaRmdeg brZolis biuros angariSis mixedviT, romelSic Sefasebulia somxeTis mdgomareoba (2013)18, im sferoebSi, romlebsac korufciis winaaRmdeg gaeros konven-ciis III Tavi „kriminalizacia da samarTaldacva“ da IV Tavi „saerTaSoriso TanamSromloba“ exeba, somxeTma gansazRvru-li debulebebi umetesad srulad an nawilobriv Seasrula. miuxedavad imisa, rom bevri pozitiuri cvlileba moxda, somxeTs kidev bevri aqvs gasakeTebeli, raTa ekonomikur da politikur sferoebSi arsebuli korufciuli riskebis done Seamciros. somxeTis kanonmdebloba ar aregulirebs ukanonio gamdidrebis sakiTxs. korufciis winaaRmdeg gaeros konvenciis samoqalaqo sazogadoebis Sefasebis19 Tanaxmad, somxeTi „... ar uzrunvelyofs iuridiuli pirebis anda gav-leniT vaWrobaze pasuxismgeblobis sakmarisad myar safuZ-vels“. angariSSi aseve xazgasmulia, rom kanonmdebloba ar uzrunvelyofs harmoniul CarCos angariSvaldebuli pirebis dasacavad da ar axdens ukanono gamdidrebis kriminalize-bas. aSkaraa debulebebis susti aRsruleba im SemTxvevebSi, rodesac figurireben maRali Tanamdebobis pirebi da poli-tikosebi. kidev erTi xarvezi korufciul danaSaulSi bral-debulebis amnistirebis sixSirea.

somxeTis Sefaseba ufro kritikuli iyo 2014 wlis ev-ropis samezoblo politikis ganxorcielebis angariSSi. ker-Zod, Seusrulebeli darCa adamianis uflebebis, fundamentu-ri Tavisuflebebis da kanonis uzenaesobis rigi sakiTxebi. evropis samezoblo politikis ganxorcielebis angariSis Tanaxmad, „...marTlmsajulebis sistemisadmi ndobis nakle-boba da korufciasTan arasakmarisad aqtiuri brZola kvlav

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problemas warmoadgens“.20 korufciasTan brZola erT-erT mTavar sakiTxad rCeboda, Tumca aRniSnuli iyo garkveuli winsvla ufaso iuridiuli daxmarebis uflebis kuTxiT.

2014 wlis oqtomberSi somxeTma evraziis ekonomikur kavSirSi gaerTianebis SeTanxmebas moawera xeli. 2013 wlis seq-temberSi miRebuli gadawyvetilebis miuxedavad, ar moexdina evrokavSirTan asocirebis xelSekrulebis, maT Soris, Rrma da yovlismomcveli Tavisufali vaWrobis xelSekrulebis inici-reba, somxeTma da evrokavSirma 2014-2015 wlebSi gaagrZeles politikuri da savaWro dialogi iseT sferoebSi, sadac es somxeTis axal saerTaSoriso valdebulebebs evraziis eko-nomikur kavSirSi ar ewinaaRmdegeboda. am mizniT, 2014 wlis noemberSi evrokavSirma da somxeTma daiwyes TanamSromlo-bis im sferoebis gansazRvra, sadac SesaZlebeli iqneba mo-mavali urTierToba da, savaraudod, korufciasTan brZolis sakiTxebi Seva.

amrigad, somxeTma miaRwia waratebebs da cvlilebebs bevr iseT sferoSi, sadac korufciis riski maRali iyo, maga-liTad, ganaTlebasa da jandacvaSi, da nawilobriv gaum-jobesebas _ kerZo seqtorsa da sajaro administrirebaSi. am cvlilebebis miuxedavad, Ria mmarTvelobis partniorobis TviTSefasebis angariSis Tanaxmad,21 somxeTi kvlavac iRebs zomebs korufciis winaaRmdeg da miznad isaxavs dauaxlovdes im standartebs, romelTa miRwevis valdebulebac doku-mentebis xelmoweriTa da ratificirebiT ikisra.

antikorufciuli saqmianobis Semdgomi ganviTareba somxeTSi

miuxedavad mTavrobis gamudmebuli mcdelobisa, Seas-rulos sxvadasxva saerTaSoriso dokumentiT gansazRvruli moTxovnebi da vadebi, saerTaSoriso eqspertis karl ulbrix-tis TqmiT, romelic evrokavSiris mier dafinansebul pro-eqtSi _ „antikorufciuli brZolis mravalmxrivi xelSewyo-ba“ _ muSaobs, „axali strategiis arqona umetesad sajaro seqtoris patara nabijebsa da nel tempSi aisaxeba, rac pro-cesis gaZlierebas xels ar uwyobs. mcire nabijebiT somxeTi ver SeZlebs gansazRvruli rekomendaciebis drois mokle pe-

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riodSi Sesrulebas“.22 procesisadmi undobloba, samwuxarod, sul ufro aRrmavebs gansxvavebebs mTavar moTamaSeebs Soris, pirvel rigSi unda aRiniSnos samoqalaqo sazogadoebasTan pasiuri dialogi. aRsaniSnavia, rom amJamad arc erT arasam-Tavrobo organizacias ar surs axladSeqmnil antikorufci-ul sabWoSi CarTva; samoqalaqo seqtoris warmomadgenlebi acxadeben, rom iseTi antikorufciuli sabWo, romlis pre-zidentic premier-ministria, ver iqneba damoukidebeli da efeqtiani.23

strategiisa da samoqmedo gegmis proeqtSi ndobis da aqtiuri CarTulobis mniSvneloba ki aris asaxuli,24 magram politikuri da ekonomikuri informaciis portalis www.eurasia.org-is Tanaxmad, „somxeTis kabinetma antikorufciuli sabWos Zireuli gadaxaliseba 19 Tebervals gadawyvita, anu erTi Tvis Semdeg, rac evrokavSirma ganacxada Tavisi gegmis Sesaxeb, rom erevans 21 milioni evro gamouyos. evrokavSiris fuli gamiznulia antikorufciuli programebisa da sajaro samsaxuris reformis xelSesawyobad“.25

informaciis Tavisuflebis somxeTis centris prezi-dentma SuSan dodoianma xazi gausva, rom „rodesac saqme re-alur magaliTebsa da zogadad, sazogadoebisTvis xelSesaxeb Sedegebs exeba, xalxi cvlilebebs ver xedavs“. samoqalaqo sazogadoebisTvis ar aris sakmarisad xelmisawvdomi iseTi informacia, romelsac korufciis winaaRmdeg damoukidebeli brZolisTvis gamoiyenebda. 2013 wlis globaluri korufciis barometris Tanaxmad, rigiT moqalaqeebs araferi SeuZliaT situaciaze gavlenis mosaxdenad. gamocdilma samTavrobo eqspertma armen xudaverdianma ki ganacxada, rom „samoqalaqo sazogadoebas korufciasTan damoukideblad brZola ar SeuZ-lia; korufciasTan brZola maRali Tanamdebobis pirebma da mTavrobis meTaurebma unda daiwyon... dokumentebis umete-soba fiqtiuri da simboluri xasiaTisaa albaT imitom, rom arsebobs SiSi, rom am brZolam SeiZleba bevri korufciuli xvreli amoqolos“.26

saxelmwifosa da samoqalaqo sazogadoebas Soris dia-logis ararseboba amZafrebs samoqalaqo sazogadoebis mouT-menlobas, korufcias ufro miuRebeli gzebiT SeebrZolos, ramac, SesaZloa, am or mxares Soris konfliqtis saxe miiRos.

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aseT viTarebaSi informaciis Tavisuflebis somxeTis centr-Tan arsebuli mTavrobasa da samoqalaqo organizaciebs So-ris dialogis koordinatoris, gevorq karapetianis, Tanax-mad, „iuridiuli zewolis meqanizmebi da Sida dialogi gaaCenda Sanss, gazrdiliyo mTavrobisa da samoqalaqo orga-nizaciebis, rogorc korufciasTan brZolaSi mTavari moTa-maSeebis, mniSv neloba, rac, Tavis mxriv, gaaZlierebda da ganaviTarebda analitikur da monitoringis impulsebs, rom-lebic somxeTs amJamad aklia“.27

iuridiuli zewolis meqanizmebisa da Sida komunika-ciis gamoyenebasTan dakavSirebiT unda aRiniSnos saxelmwifo organoebs Soris komunikaciis nakleboba, rac aseve koruf-ciis risks qmnis.

rogorc armen xudaverdianma aRniSna, „saxelmwifo or-ganoebs Soris ar arsebobs myari urTierTkavSiri aucilebe-li informaciisa da dokumentebis miwodebis TvalsazrisiT. aravin iRebs pasuxismgeblobas informaciis miwodebaze, am-boben ra, rom es maT movaleobaSi ar Sedis. aseT viTarebaSi rTuldeba monitoringis ganxorcieleba, rac somxeTSi ko-rufcias sistemur xasiaTs sZens“.

eqspertebs gansxvavebuli midgomebi aqvT korufciis gagebis mimarT, Tumca yvela Tanxmdeba, rom somxeTis saja-ro dRis wesrigi sustia da sul ufro kargavs mniSvnelobas, radgan nel-nela yalibdeba stereotipuli kultura, sadac korufcia sakuTar adgils ikavebs.

azerbaijani

sakanonmdeblo da instituciuri ganviTareba

azerbaijanma korufciis winaaRmdeg evropis sabWos sisxlis samarTlisa da samoqalaqo samarTlis konvenciebis ratifikacia 2004 wels moaxdina da imave wels gaxda koruf-ciis winaaRmdeg saxelmwifoTa jgufis wevri. korufciis wi-naaRmdeg saxelmwifoTa jgufis Sefasebis pirvel angariSSi (2006) azerbaijanis Sesaxeb aRniSnuli iyo azerbaijanis mTav-robisa da qveynis prezidentis motivaciis Sesaxeb, ebrZolaT korufciis winaaRmdeg, radgan es, maTi warmodgeniT, organi-

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zebul danaSauls ukavSirdeboda da qveynis stabilurobasa da ganviTarebas uqmnida safrTxes.28 miuxedavad amisa, azer-baijanis mTavrobis warmomadgenlebTan Catarebulma vrcel-ma interviuebma, rac miznad isaxavda korufciis seqtorebisa da xasiaTis gansazRvras, aranairi Sedegi ar gamoiRo.29

2004 wels azerbaijanis parlamentma miiRo kanoni ko-rufciasTan brZolis Sesaxeb, romelic korufciuli Semo-savlebis konfiskaciis SesaZleblobas iZleoda da sajaro moxeleebs sakuTari Semosavlebis deklarirebas avaldebu-lebda. damatebiTi brZanebulebiT prezidentma imave wels prokuraturaSi specialuri departamenti Seqmna, romelic korufciul danaSauls iZiebda. 2004 wlis 3 seqtembers pre-zidentis brZanebulebiT damtkicda korufciasTan brZolis saxelmwifo programa, romelic, sxva RonisZiebebs Soris, iTvaliswinebda specialuri antikorufciuli komisiis Seqm-nas, samarTaldamcavi da sasamarTlo sistemebis reformire-bas, TviTSegnebis amaRlebas, ganaTlebasa da ekonomikis re-formirebas da samoqalaqo sazogadoebasTan komunikacias. 2005 wlis maisSi Seiqmna korufciasTan brZolis saxelmwifo komisia, romelSic saerTaSoriso eqspertebi, samoqalaqo sazogadoebisa da mediis warmomadgenlebi Sediodnen.

2010 wels, korufciis winaaRmdeg saxelmwifoTa jgu-fis Sefasebis mesame raundis Sedegad, momzadda angariSi30 sisxlis samarTlis konvenciis (nawili 1: mxileba) da par-tiul dafinansebaze evropis sabWos rekomendaciis31 ganxor-cielebis mimdinareobis Sesaxeb.32

angariSSi, mxilebis nawilSi, aRniSnuli iyo qveyanaSi momxdari is winsvla, romelic gamoiwvia sisxlis samarTlis kodeqsSi Setanilma cvlilebebma, riTac moxda qrTamis krimi-nalizeba. Tumca es cvlilebebi arasakmarisad aris miCneuli, vinaidan:

cneba „moxele“, romelic qrTamis Sesaxeb Sesabamis debu-lebebSi iyo gamoyenebuli, ar exeboda yvela sajaro moxe-les da mosamsaxures centralur da adgilobriv doneze.

qrTamis SeTavazeba da dapireba iseve, rogorc am SeTava-zebisa da dapirebis miReba, ar warmoadgenda Cadenil da-naSauls.

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gavleniT vaWrobis kriminalizeba ar exeboda mxareebs, romlebic SemCneuli iyvnen kerZo seqtorSi momuSave ada-mianebis moqrTamvaSi.

sakmaod bevri daTqma rCeboda korufciis winaaRdeg sisx-lis samarTlis konvenciasTan dakavSirebiT.

rekomendaciebi Seexeboda zemoaRniSnul sakiTxebs. politikuri partiebis dafinansebis nawilSi (Tema II) ar iyo mniSvnelovani SeniSvnebi, radgan politikur partiebs, garda mmarTveli partiisa, ar gaaCndaT sakmarisi finansu-ri resursebi, raTa maTi warmomavlobis da gamWvirvalobis monitoringi momxdariyo. da mainc, angariSi moicavda reko-mendacias, SemuSavebuliyo ufro mkafio wesebi dafinansebis wyaroebis aRricxvis warmoebisa da maT Sesaxeb angariSgebi-saTvis.33

zemoxsenebuli Sefasebis gaTvaliswinebiT, korufciis winaaRmdeg saxelmwifoTa jgufma 2013 da 2015 wlebSi reko-mendaciebis Sesrulebis angariSebi moamzada. sakanonmdeblo cvlilebebis miRebis Sedegad mniSvnelovani winsvla iyo mxi-lebis nawilSi. rekomendaciebis sul cota naxevari srulad Sesrulebulad CaiTvala, xolo darCenili rekomendaciebis umetesoba _ nawilobriv Sesrulebulad. miuxedavad amisa, an-gariSSi azerbaijani gakritikebuli iyo Sesrulebuli saqmi-anobis damadasturebeli monacemebis ararsebobisTvis. sisx-lis samarTlebrivi devnis statistika Zalian patara ricxvs iZleva iseTi adamianebis raodenobisa, romlebic mxilebuli arian pasiur da aqtiur meqrTameobaSi.

partiuli dafinansebis nawilSi (nawili II) angariS-Si sakanonmdeblo aspeqtiT naklebi progresis Sesaxebaa aRniSnuli, gansakuTrebuli kritika ki aris politikuri pluraliz mis miRwevaSi winsvlis ararsebobis gamo. rekomen-dacia saarCevno kampaniebis finansuri da sabuRaltro pe-riodis gazrdasTan dakavSirebiT „kvlav Seusrulebelia“.34 amave dros srulad aris Sesrulebuli rekomendacia, ro-melic Seexeboda politikuri partiebisaTvis valdebulebis dakisrebas, awarmoon mkacri saaRricxvo da angariSgebis do-kumentebi aqtivebisa da valdebulebebis moZraobis Sesaxeb.

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zogadad, korufciis winaaRmdeg saxelmwifoTa jgu-fis angariSebi aCvenebs, rom azerbaijani cdilobs formalu-rad daakmayofilos korufciasTan brZolis evropis sabWos konvenciebis moTxovnebi.

2011 wels azerbaijani SeuerTda35 Ria mmarTvelobis partniorobas, xolo 2012 wels miiRo samoqmedo gegma 2012-2015 wlebisTvis. korufciasTan brZolis komisiis mier ward-genili TviTSefasebis angariSi aCvenebs, rom qveyana mniSv-nelovan nabijebs dgams samTavrobo monacemebis gacifrebisa da eleqtronuli mmarTvelobis SemoRebis mxriv, rac sajaro angariSvaldebulebis da gadasaxadebis Segrovebis sistemebis gamWvirvalobas zrdis da „erTi fanjris“ principi Semoaqvs sajaro reestrsa da sxva sajaro servisebSi. yvela es qmedeba emsaxureba meqrTameobis sivrcisa da korufciis riskis Sem-cirebas.

korufciasTan brZolis gaeros konevnciis ganxor-cielebaze yvelaze bolo angariSi, romelic gaeros nar-kotikebisa da danaSaulis winaaRmdeg brZolis biurom moamzada, 2012 wlis mdgomareobas asaxavs, Tumca bevri reko-mendacia kvlav relevanturi da Sesasrulebelia.

euTos antikorufciuli samoqmedo gegmis (romelsac qveyana 2014 wels SeuerTda) ganxorcielebis mimdinareobis Sesaxeb 2014 da 2015 wlebis angariSebi aCvenebs, rom azerbai-janma mniSvnelovnad Seanela rekomendaciebis ganxorcieleba. samoqmedo gegma moicavs sam mTavar sferos: antikorufciul strategiebsa da institutebs, korufciis kriminalizebas da korufciis prevencias. mcire winsvlaa Semdeg sferoebSi: qmediTi monanieba da imuniteti, konfiskacia, finansuri mo-nacemebis xelmisawvdomoba, sajaro administrirebis gamWvir-valoba da diskrecia, saxelmwifo Sesyidvebi, informaciis xelmisawvdomoba, politikuri korufcia da mosamarTleTa imuniteti. aranairi winsvla ar aRiniSna codnis amaRlebisa da samoqalaqo sazogadoebis CarTulobis sferoebSi.36

eqspertis monaTxrobi azerbaijanSikorufciis Sesaxeb

azerbaijanis sazogadoebis damokidebuleba koruf-ciis mimarT Zalian negatiuria. iTvleba, rom azerbaijan-

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is xelisufleba Zalas ar iSurebs, rom Tavisi saqmianoba iduma lebis saburvelSi gaaxvios da samoqalaqo sazogadoe-bas gaurTulos samTavrobo uwyebebis ekonomikuri saqmi-anobis Sesaxeb informaciis miReba. rogorc zemoT aRiniSna, forma lurad qveynis mTavroba aqtiurad CaerTo korufciis winaaRm deg globalur brZolaSi: Sesabamisi antikorufciuli organo ebis Seqmnasa da eleqtronuli mmarTvelobis proeqtis ganxor cielebasTan erTad azerbaijani erT-erTi pirvelTa-gani iyo, romelmac mompovebeli industriebis gamWvirvalo-bis iniciativas dauWira mxari37 da yvela saministrom da uw-yebam Sesabamisi vebgverdi Seqmna. Tumca, rogorc samoqalaqo sazogadoebis warmomadgenlebi acxadeben, maTi umravlesoba ar funqcionirebs da moZvelebul da/an umniSvnelo infor-macias Seicavs.

korufciis erT-erTi mTavari forma saxelmwifo TanamdebobebiT vaWrobaa. media xSirad wers amis Sesaxeb da kanondarRvevis konkretuli magaliTebi mohyavs, Tumca samoqalaqo sazogadoebidan momaval signalebs xelisufleba umetes SemTxvevaSi yuradRebas ar aqcevs.

korufciis seriozuli wyaroa qveynis biujeti. wina wlebis msgavsad, 2015 wels biujetis naxevarze meti azer-baijanis respublikis navTobis saxelmwifo fondis trans-ferebis xarjze Sedga. sabiujeto danaxarjebis lomis wili tradiciulad infrastruqturuli proeqtebis ganxor-cielebazea mimarTuli, romelTac ar utardebaT xarjsarge-blianobis analizi. xarjebi, Cveulebriv, gadaWarbebulia da xSirad izrdeba, rasac gaumarTlebeli da dausabuTebe-li danakargebi moaqvs. amis magaliTebia: oguz-gabala-baqos wyalsadeni,38dedaqalaqis garSemo mTavari magistralis, gze-bisa da xidebis qselis mSenebloba, yarsi-Tbilisi-baqos rki-nigza, prestiJuli saerTaSoriso RonisZiebebi _ 2012 wlis evroviziis konkursi da 2015 wlis evropuli TamaSebi, saso-flo-sameurneo danadgarebis lizingis sistemis Seqmna, sa-sawyobe obieqtebis qselis mSenebloba soflis meurneobis produqtebisTvis da saavadmyofoebisa da skolebis mSeneb-loba.

korufciuli garigebebis mniSvnelovani sarbielia saxelm wifo Sesyidvebi da SekveTebis ganawileba sxvadasx-

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va proeqtis gansaxorcieleblad. miuxedavad imisa, rom am sferoSi tenderebis Catarebaze sakanonmdeblo moTxovnebi sruldeba, satendero proceduris formaluri xasiaTisa da gaumWvirvalobis gamo tenderebSi, Cveulebriv, is kompaniebi imarjveben, romelTa damfuZneblebic tenderis gamomcxade-beli uwyebis xelmZRvanelis axlo naTesavebi arian. azerbai-janis samoqalaqo sazogadoeba aqtiurad aris dakavebuli korufciuli praqtikis faqtebis gamovleniTa da gasajaroe-biT, aseve maTi prevenciiT. am saqmeSi samoqalaqo sazogadoe-ba mWidrod TanamSromlobs saerTaSoriso organizaciebTan da mTavrobis sxvadasxva organos daJinebiT sTavazobs Tavis momsaxurebas korufciasTan brZolaSi. samwuxarod, xelisuf-leba uaryofiTad ekideba samoqalaqo sazogadoebis saqmiano-bas korufciasTan brZolis sferoSi, vinaidan es ewinaaRm-degeba sakmaod Zlevamosili pirovnebebisa da struqturebis interesebs.

sxvadasxva arasamTavrobo organizaciam detalurad Seiswavla korufciis meqanizmis funqcionireba sajaro ad-ministrirebis sxvadasxva sferoSi. Zalian efeqtiani iyo eko-nomikuri arasamTavrobo organizaciebis muSaoba, romlebmac sxvadasxva saministros statistika Seiswavles da statistikis saxelmwifo komitetis sakmaod saeWvo monacemebis eqspertu-li Sefaseba gaakeTes.39 Sedegad, sazogadoebam da xelisufle-bam miiRes sakmaod damajerebeli da sando angariSebi koruf-ciuli praqtikis faqtebisa da moculobebis Sesaxeb sabaJo, sagadasaxado, transportisa da komunikaciis, ganaTlebis, sazogadoebrivi jandacvis, ekologiis, navTobis, municipal-uri ekonomikisa da mSeneblobis sferoebSi. magali Tad, baqo-Si moqmedi arasamTavrobo organizacia „ekonomikuri kvlevis centris“ analitikosma da ekonomistma gubad ibadoRlim ga-moavlina sabaJo samsaxuris mier Cadenili kanondarRvevebi, romelic aCvenebs 2001-2011 wlebSi 11.5 milioni aSS dola-ris Rirebulebis saqoneli ar daregistrirda, ris Sedega-dac saxelmwifom didi zarali ganicada. cota xnis win imave arasamTavrobo organizaciam moamzada monitoringis angari-Si Ria mmarTvelobis partniorobis samoqmedo gegmis ganxor-cielebis Sesaxeb da daaskvna, rom „azerbaijanSi aqtivebis gasajaroeba ar xdeba da arc maRali Tanamdebobis pirebis

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Semosavlebis deklaraciebia sajaro....“40 samwuxarod, xe-lisuflebam mxedvelobaSi arc erTi seriozuli sagamoZiebo angariSi ar miiRo; korufciis aRmoCenil faqtebze reagire-bac ki ar momxdara, rac am problemis mimarT xelisuflebis realuri damokidebulebis maCvenebelia.

samoqalaqo sazogadoebis aqtivistebi, korufciis faqtebisa da meqanizmebis Seswavla-gamovlenis garda, xe-lisuflebas sistemuri reformis meSveobiT korufciis pre-venciisa da daZlevis rekomendaciebsac sTavazoben. amisa-Tvis isini swavloben im qveynebis gamocdilebas, romlebmac es saSiSi socialuri seni alagmes, am informacias aqveyneben da TavianT anagriSebs samTavrobo uwyebebs ugzavnian.

azerbaijanisTvis saukeTeso magaliTi am Tvalsaz-risiT, ra Tqma unda, saqarTveloa, sadac prezident mixeil saakaSvilis mmarTvelobis dros ganxorcielebulma gadamwy-vetma kampaniebma samTavrobo korufciis winaaRmdeg Zalze pozitiuri Sedegebi gamoiRo. aqve isic unda aRiniSnos, rom, rig SemTxvevebSi, aseTi kampaniebi zogi biznesmenis ufle-bebis darRveviT warimarTa, ris Sedegadac saSualo bizne-sis udanaSaulo warmomadgenlebic dazaraldnen. amave dros, antikorufciulma kampaniam saqarTveloSi moulodnelad kargi Sedegebi moitana. pirvel rigSi, man gza gauxsna moqa-laqeTa piradi uflebebis ganviTarebas da safuZveli Cauyara demokratiul institutebs. es erTgvari fenomenia imis gaT-valiswinebiT, rom, rogorc cnobilia, saakaSvilis mTavro-bam, korufciasTan saxelmwifos organizebuli brZolis pi-robebSi, humanurobisa da adamianis uflebebis TvalsazrisiT mTeli rigi ukanono qmedebebi Caidina.

pozitiuri cvlilebebi aRiniSna saxelmwifo biujetis Sedgenis procesSi. xelisuflebam Sesabamisi procedurebi evropis qveynebis standartebs dauaxlova. Tumca saxelm-wifo biujetis dagegmvis dros xelisufleba arasdros mar-Tavs konsultaciebs samoqalaqo sazogadoebasTan da arc mis mosazrebas iTvaliswinebs. erT-erTi parlamentis wevris, hu-sein abdulaevis, mcdelobas, kritikulad Seefasebina mTav-robis muSaobis Sedegebi, jer misi sadeputato mandatis gauqmeba mohyva, Semdeg ki _ misi dapatimreba da bolos _ eqspatriacia. mompovebeli industriebis Semosavlebis meti

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gamWvirvalobis miRwevis mcdelobebis miuxedavad, es qmedeba ar Seexo navTobidan miRebuli Semosavlebis xarjvis mTavar aspeqtebs da azerbaijanis respublikis saxelmwifo navTob-kompaniis saqmianobas.41 Semosavlebis xarjvis Sesaxeb aranairi informacia ar arsebobs. mompovebeli industriebis gamWvir-valobis iniciativis kriteriumebTan azerbaijanis xelisu-flebis qmedebebis Seusabamobis gamo am organizaciam wels specialuri misia miavlina azerbaijanSi arsebuli viTarebis Sesaswavlad.42

deklaraciul doneze mTavroba aqtiurad ebrZvis ko-rufcias: qveyndeba informacia dapatimrebuli da samsaxuri-dan ganTavisuflebuli korumpirebuli sajaro moxeleebis da TanamSromlebis raodenobis Sesaxeb, magram, rogorc Cans, sasjels mxolod bankis wvril moxeleebsa da dabali rangis TanamSromlebs adeben.

msoflio bankis mxardaWeriT azerbaijanSi mosaxleo-bisTvis sajaro servisebis „erTi fanjris“ principiT gawevis samsaxuri _ asanis serviscentri _ Seiqmna, ramac bevr sfero-Si Seamcira mosaxleobisgan qrTamis gamoZalvis SesaZleblo-ba. aqve aRsaniSnavia, rom korufciasTan aseT dabal doneze brZo la zeda eSelonebSi arsebul korufcias ugulebelyofs. 2014 wels dawyebulma mzardma zewolam samoqalaqo aqtivis-tebze, maT Soris im Jurnalistebze, romlebic iZiebdnen korufciis faqtebs (pirvel rigSi, internetteleviziis progra mebis wamyvani seimur hazievi da aSS-is dafinansebu-li `radio Tavisuflebis~ azerbaijanis samsaxur `azadli-gis~ sagamoZiebo Jurnalisti da programis wamyvani xadija ismailova43), damoukidebeli arasamTavrobo organizaciebis angariSebis gayinvam, sajaro administraciis xarvezebis aqti-uri kritikosebis dapatimrebam, masmediisa da ucxoeli do-norebis saqmianobis SezRudvam seriozulad imoqmeda samo-qalaqo sazogadoebis SesaZleblobebze, efeqtianad ebrZola korufciis winaaRmdeg.

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saqarTvelo

Sesavali

antikorufciuli strategiis SesamuSaveblad saqarT-veloSi 2001 wels Seiqmna antikorufciuli politikis sa-koordinacio sabWo, romelsac prezidenti Tavmjdomareobda. miuxedavad amisa, momdevno wlebSi politikur xelmZRvane-lobas arc erTi mniSvnelovani gadawyvetileba ar miuRia, rac realuri cvlilebebis gatarebis politikuri nebis ararsebobis maCvenebeli iyo. saqarTvelom mniSvnelovan Sedegebs korufciasTan brZolaSi 2004 wlis Semdeg miaRwia, roca xelisuflebaSi vardebis revoluciis gziT axalgazr-da, reformistuli mTavroba movida da antikorufciuli reformebi axali elitis erT-erT politikur prioritetad ganisazRvra.

saqarTvelo yvela saerTaSoriso konvencias da ini-ciativas SeuerTda, romlebic korufciasTan brZolas ukav-Sirdeboda. es konvenciebia:

korufciis winaaRmdeg gaeros konvencia, 2008

evropis sabWos korufciis Sesaxeb sisxlis samarTlis konvencia (ETS 173), 2003

evropis sabWos samoqalaqo samarTlis konvencia koruf-ciaze (ETS 174), 2008

euTos stambolis antikorufciuli samoqmedo gegma, 2004

im organoebis monitoringis angariSebi da Sefasebebi, romlebic Sesabamisi kanonmdeblobis valdebulebebisa da rekomendaciebis Sesrulebaze awarmoeben monitorings (gae-ros narkotikebisa da danaSaulis winaaRmdeg brZolis biuro, saxelmwifoTa jgufi korufciis winaaRmdeg, euTo da sxva), aCvenebs, rom saqarTvelo SesabamisobaSia maT umravlesobas-Tan. es dasturdeba mxilebasTan, partiul dafinansebasa da korufciis prevenciasTan dakavSirebiT.

korufciis winaaRmdeg gaeros konvenciis ratifici-reba saqarTvelos parlamentSi 2008 wlis 4 noembers moxda. 2004 wels saqarTvelo stambolis antikorufciul samoq-

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medo gegmas SeuerTda da, nakisri valdebulebebis Tanaxmad, 2005 wels pirveli erovnuli antikorufciuli strategia da samoqmedo gegma miiRo. strategia fokusirebuli iyo saxelm-wifo korufciaze da miznad antikorufciuli politikis SemuSavebas, efeqtian sisxlissamarTlebriv devnas da kar-gi mmarTvelobisadmi axali midgomebis danergvas isaxavda. meore strategia 2010 wels iqna miRebuli, romelsac axali antikorufciuli samoqmedo gegma mohyva, mTavari aqcen-tiT korufciis prevenciaze. gegmaSi Semdegi amocanebi iyo dasaxuli: `...a) sajaro servisis modernizeba; b) konkurentu-li da korufciisgan Tavisufali kerZo seqtori; g) marTl-msajulebis sistemis saqmianobis daxvewa; d) uwyebaTaSorisi koordinaciis gazrda da e) politikuri korufciis preven-cia“.44 gaeros narkotikebisa da danaSaulis winaaRmdeg brZo-lis biuros bolo xelmisawvdomi angariSis (2012 w.) Tanaxmad, romelSic gegmis ganxorcielebaa mimoxiluli, saqarTvelos kanonmdebloba SesabamisobaSia korufciis winaaRmdeg gaeros konvenciasTan meqrTameobis kriminalizebis, gavleniT vaW-robis, danaSaulebrivi Semosavlebis gaTeTrebis, dafarvis, miTvisebis, funqciebis borotad gamoyenebis, ukanono gam-didrebis, marTlmsajulebisTvis xelis SeSlis, iuridiuli pirebis pasuxismgeblobisa da bevri sxva aspeqtiT.45

korufciis winaaRmdeg saxelmwifoTa jgufis moni-toringis angariSebi (bolo xelmisawvdomi 2013 wlis angari-Sia)46 korufciis winaaRmdeg evropis sabWos sisxlis samar-Tlis konvenciis ganxorcielebis mimdinareobas exeba (ETS 173). kerZod, korufciis winaaRmdeg saxelmwifoTa jgufis rekomendaciebis Sesruleba, romlebic SemoTavazebuli iyo 2010 wlidan, mxilebis (nawili I) da politikuri dafinansebis gamWvirvalobis (nawili II) nawilebSi umetes SemTxvevaSi dama-kmayofileblad aris Sefasebuli.

stambolis antikorufciuli samoqmedo gegmis moni-toringis mesame raundis yvelaze bolo angariSi (2015 wlis marti)47 saqarTvelos winsvlas aCvenebs yvela mimarTule-biT, maT Soris sazogadoebis monawileobis, antikoruf-ciuli politikis organos resursebis, iuridiuli pirebis pasuxismgeblobis, sanqciebis da saproceso garigebebis, sisxlissamarTlebrivi devnis droiTi limitebis, sisxlis-

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samarTlebrivi devnis damoukideblobis, sajaro samsaxuris saerTaSoriso ormxrivi reformis, finansuri kontrolisa da auditisa da saxelmwifo Sesyidvebis mimarTulebebiT. nak-lebi winsvla aRiniSna politikuri partiebis dafinansebis gamWvirvalobis, marTlmsajulebis sistemisa da komerciuli keTilsindisierebis gaumjobesebis kuTxiT.

saqarTvelos antikorufciuli politika 2003-2012 wlebSi

2003 wlidan saqarTvelos mTavrobam ar daiSura Zala korufciis donis Sesamcirebeli farTomasStabiani insti-tuciuri reformebis gasatareblad. am mizniT mTavrobam sxva dasxva sferoSi mraval iniciativas mimarTa:

sapatrulo policiis reforma, romliTac avtoinspeqciis inspeqtorebs axali, ufro disciplinebuli da maRalanaz-Raurebadi sagzao sapatrulo policiis oficebri Cae-nacvlen.

sagadasaxado samsaxurebis efeqtianobis zrda ga-dasaxadebis agresiuli aRsrulebisa da Zireuli saga-dasaxado reformebis, maT Soris korumpirebuli ofi-crebis gaTavisuflebis, axali personalis konkursebis gziT daqiravebis, gadasaxadebis ganakveTebis Semcirebisa da sagadasaxado kodeqsis gamartivebis gziT.

eleqtroenergiiT 24-saaTiani momaragebis uzrunvelyofa da gadasaxadebis Segrovebis donis mniSvnelovani mateba.

samTavrobo regulaciebis raodenobis minimumamde Semci-reba, romlis Sedegadac Semcirda rogorc nebarTvebisa da licenziebis raodenoba, iseve makontrolebeli saagen-toebis raodenoba, romlebic korufciis wyaros warmoad-gendnen.

axali sajaro reestris Seqmna axali kulturiT, axali personaliT, axali teqnologiebiTa da axali saqmiswar-moebiT moqalaqesa da saxelmwifos Soris yvela saxis urTierTobaSi _ qonebis registrirebidan dawyebuli pas-portis aRebiT damTavrebuli, ramac meqrTameobis bevri SesaZlebloba mospo.

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universitetebSi misaRebi erTiani erovnuli gamocdebisa da gamWvirvale, konkurentuli gamocdebis sistemis Se-moReba, ramac aRmofxvra korufcia da umaRlesi saswav-lebeli bevri studentisTvis (gansakuTrebiT _ soflad mcxovrebi Raribis studentebisTvis) ufro xelmisawvdo-mi gaxada.

zemoT CamoTvlili zomebi Zalian efeqtiani aRmoCnda, radgan isini efuZneboda korufciasTan brZolis erovnuli politikis CarCos, romlis gadaxedva periodulad xdeboda. mTavrobam pirveli antikorufciuli strategia 2005 wlis ivnisSi miiRo, xolo am strategiis ganaxlebuli versia 2010 wels daamtkica. am strategiebs orwliani samoqmedo geg-mebi axlda, romlebSic gansazRvruli iyo sakanonmdeblo da instituciuri ganviTarebis amocanebi da antikorufci-uli RonisZiebebis zedamxedvelobis gaumjobesebis zomebi. yvelaze bolo samoqmedo gegma 2014-2016 wlebs moicavs da umTavresad TviTSegnebis amaRlebazea fokusirebuli, se-qtorebis umetesobaSi _ korufciis prevenciisTvis da ara Tavad korufciasTan brZolisTvis.48 antikorufciuli sabWo funqcionirebas ganagrZobs da Sedgeba sxvadasxva saxelm-wifo uwyebis maRali Tanamdebobis pirebisgan, arasamTavrobo da saerTaSoriso organizaciebisa da biznesseqtoris warmo-madgenlebisgan. 2013 wlis saprezidento arCevnebis Semdeg antikorufciuli sabWo angariSvaldebulia saqarTvelos mTavrobis winaSe.

sxvadasxva saerTaSoriso organizacia da partniori qveyana aRiarebs, rom saqarTvelom drois mokle periodSi miaRwia TvalSisacem Sedegebs korufciis Semcirebis saqmeSi da wvrilmani korufcia aRmofxvra. 2014 wels saerTaSori-so gamWvirvalobis korufciis aRqmis indeqsiT saqarTvelos 52 qula mieniWa da 175 qveyanas Soris 50-e iyo. miuxedavad amisa, garkveuli mniSvnelovani nabijebis gadadgma aucile-belia, raTa saqarTveloSi efeqtianad moqmedi da mdgradi antikorufciuli sistema Seiqmnas, romelic qveyanaSi de-mokratiis konsolidirebis process gaaumjobesebs.

mTavrobam unda gaagrZelos da daaCqaros reformebi samive fundamenturi instituciis kategoriaSi grZelvadiani Sedegebis miRwevisa da korufciis prevenciis mizniT. kerZod,

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mTavrobam unda uzrunvelyos marTlmsajulebis sistemis damoukidebloba da miukerZoebloba, Seqmnas avtonomiuri, meritokratiuli, Tanamedrove sajaro samsaxuri da miaRwios mTavrobis angariSvaldebulebis maRal dones iseTi proce-durebis SemoRebiT, romlebic mTavrobas ufro mgrZnobiares gaxdida Tavisi moqalaqeebis moTxovnebis mimarT.

arsebul gamowvevebze reagireba

marTlmsajulebis sistemis reforma 2005 wels daiwyo. bolo wlebis ganmavlobaSi mTavrobam gazarda sasamarTloe-bis biujeti da mosamarTleTa xelfasebi, ganaxorciela sa-samarTloebis da iusticiis umaRlesi sabWos reorganizacia, aRmofxvra meqrTameobis praqtika sasamarTloebSi, teqniku-rad ganaaxla da gaaremonta sasamarTloebis Senobebi, daiw-yo mosamarTleTa specializacia, mosamarTleTaTvis Seqmna specialuri saganmanaTleblo institutebi da daamarcxa ko-rufcia zogadad marTlmsajulebis sistemaSi.

da mainc, sistema kvlav gamowvevebis winaSe dgas da-moukideblobis dabali xarisxis gamo.49 2010 wels bevrma damkvirvebelma aRniSna, rom sisxlis samarTlis saqmeebSi sasamarTloebSi ar aris damkvidrebuli samarTlianoba.50 2012 wels saqarTveloSi evropis samezoblo politikis ganxorcielebis Sesaxeb angariSSi xazgasmuli iyo, rom mTa-var problemas prokuroris Zlieri pozicia da marTlmsa-julebis sistemis damoukideblobis nakleboba warmoadgenda. amas aseve adasturebda braldebulad cnobis Zalian maRali maCvenebeli (TiTqmis 98%) da saproceso garigebebis gamoye-neba saqmeTa 87%-Si.

axalma mTavrobam, romelic xelisuflebaSi 2012 wlis saparlamento arCevnebiT movida, nafic msajulTa sasamarT-lo SemoiRo yvela sisxlis samarTlis saqmeze mosamarTleebi uvadod daniSna, iusticiis umaRlesi sabWos wevrebi Sear-Cia, miiRo saerTo sasamarTloebis Sesaxeb axali kanonmde-bloba da regulaciebi sisxlis samarTlis gamoZiebaSi aRmas-rulebeli xelisuflebis Carevis SesazRudad. sasamarTlo procesebis Riaoba da gamWvirvaloba gaumjobesda im regu-laciis gauqmebis Sedegad, romelic krZalavda eleqtro-

27

nuli aRWurvilobis Setanas sasamarTlo darbazebSi da sa-samarTlo procesebi mediisTvis gaixsna. miuxedavad amisa, marTlmsajulebis damoukidebloba kvlav sustia. yofili xelisuflebis aTobiT Tanamdebobis pirs sisxlis samarTlis danaSaulSi dasdes brali da adamianis uflebaTa damcvelma rigma organizaciebma dagmes darRvevebi am sasamarTlo pro-cesebis mimdinareobis dros, rac eWvebs aCens saqarTvelos marTlmsajulebaSi samarTliani sasamarTlos uflebis ar-sebobis Taobaze.51 evrokomisiam Tavis 2014 da 2015 wlebis angariSebSi saqarTveloSi evropis samezoblo politikis ganxorcielebis Sesaxeb xazi gausva samarTliani, gamWvir-vale da mtkicebulebebze damyarebuli saTanado procesis uzrunvelyofis saWiroebas, romelic politikuri Carevis-gan Tavisufali iqneba. 2014 wels Catarebuli sazogadoe-brivi azris gamokiTxvis mixedviT, romelic saqarTveloSi marTl msajulebis mimarT ganwyobebs Seiswavlida,52 gamokiT-xulTa mxolod 36% endoboda am instituts (saqarTveloSi arsebuli ndobis mqone institutebs Soris). mTavari prob-lema kanonmdeblobis bundovaneba da orazrovnebaa, rac mosamarTleebs farTo diskrecias aniWebs da mravalgvari interpretaciis saSualebas iZleva. Sesabamisad, aucilebe-lia kanonmdeblobis ufro mkafiod, gasagebad formulireba, antikorufciul sakiTxebSi mosamarTleebis treningis pri-oritetad ganisazRvra, sasamarTloebis, mosamarTleTa kon-ferenciis, iusticiis umaRlesi sabWosa da iusticiis skolis gadawyvetilebebis sajaroobis da Tavisufali/proaqtiuri xelmisawvdomobis uzrunvelyofa, aseve _ axali, damoukide-beli da kvalificiuri mosamarTleebisTvis saTanado ganaT-lebis SesaZleblobis gazrda. evrokomisiam aseve miuTiTa prokuraturis reformirebis da prokuraturaze efeqtiani zedamxedvelobis ganxorcielebis aucileblobaze.53

mTavrobis angariSvaldebulebis da sajaro samsaxu-ris reformis uzrunvelyofa

mniSvnelovania or arCevnebs Soris mTavrobis insti-tuciuri angariSvaldebulebis uzrunvelyofa, raTa Tavidan iqnes acilebuli mTavrobis mxridan represiuli da TviTne-

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buri gadawyvetilebebis miReba da korufciis donis zrda qveyanaSi.

ufaso informaciis sajaro xelmisawvdomoba uzrunvel yofs sajaro administrirebis met gamWvirvalobas da korufciis prevencias. 2015 wlis Ria mmarTvelobis in-deqsiT (romelic 2015 wlis 26 marts gamoqveynda) saqarTvelo 29-e adgilzea 102 qveyanas Soris: saqarTvelo me-16 adgilzea sajaro informaciis xelmisawvdomobis uflebis mixedviT, xolo am uflebis ganxorcielebis mxriv 36-e adgils ikavebs. Tumca, miuxedavad administraciul kodeqsSi cota xnis win Setanili cvlilebebisa, problemebi kvlav rCeba axali regu-laciebis ganxorcielebisa da aRmsasrulebeli institutebis funqcionirebis mxriv.

sajaro samsaxuris sferoSi mTavrobas jer ar Seu-muSavebia reformis sistemuri CarCo. jer kidev ucnobia, rogor midgomas airCevs mTavroba, xeli rom Seuwyos sajaro samsaxuris SeTanxmebulad funqcionirebadi integrirebuli sistemis Camoyalibebas da uzrunvelyos sajaro moxeleTa miukerZoebloba da keTilsindisiereba, Tumca am mimarTule-biT calkeul zomebs ukve iReben. maSin, rodesac sajaro sam-saxuris Sesaxeb kanoni mkafiod adgens diskriminaciisgan da samsaxuridan politikurad motivirebuli ganTavisuflebis-gan dacvis meqanizms, praqtikaSi arapartiulobis princips Zalian naklebad uwevs angariSs rogorc axlandeli, ise nebis mieri wina mTavroba.

kanonmdeblobaSi interesTa konfliqti saTanadod aris gansazRvruli, Tumca praqtikaSi es problematuri sakiTxia. xSiria mediaSi informacia nepotizmisa da Tanamde-bobis borotad gamoyenebis Sesaxeb, Tumca amas samarTaldam-cavi organoebis mxridan efeqtiani reagireba ar mohyveba.54

bevr demokratiul qveyanaSi personalis regularuli rotacia prevenciuli zomaa sajaro administraciaSi koruf-ciis Tavidan asacileblad da saqarTvelos mxridan survilis naklebobam, yovlismomcveli reformebi gaataros am sfero-Si, bolo wlebSi SesaZlebeli gaxada sajaro moxeleebze politikuri zegavlenis gamoyeneba.55

saqarTvelom mniSvnelovani Zalisxmeva gamoiCina sa­xelmwifo Sesyidvebis sferos reformirebisTvis, raTa sa-

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xelmwifo Sesyidvebis konkurentuli da gamWvirvale sistema Seeqmna. kanonma saxelmwifo Sesyidvebis Sesaxeb, romelic 2006 wels iqna miRebuli da mas Semdeg ramdenjerme Seswore-buli, xeli Seuwyo saxelmwifo Sesyidvebis erTiani eleqtro-nuli sistemis danergvas 2010 wels. efeqtiani saxelmwifo Sesyidvebis miRwevaSi mTavar Semaferxebel faqtorebs Soris aris sakanonmdeblo bazis naklovanebebi. saxelmwifo Sesyid-vebTan dakavSirebul korufciaSi dadanaSaulebuli sajaro moxeleebis saqmeebis bolodroindeli gamoZiebebi ar iwvevs ndobas da ar uzrunvelyofs samarTlianobis gancdas sazoga-doebaSi. kanonebi bundovani rCeba da aucilebelia, rom ufro cxadad da mkafiod iyos gansazRvruli, raTa ar moxdes maTi araswori interpretacia da SeizRudos diskreciis SesaZleb-loba.

daskvnebi

politikur mecnirebaTa Tanamedrove Teoria koruf-cias gansazRvravs, rogorc sajaro resursebis gamoyenebas piradi miznebisaTvis. is SeiZleba erT-erTi mTavari Semafer-xebeli faqtori gaxdes mTavrobisTvis servisebis miwodebis, kanonebis aRsrulebisa da sajaro interesebis gamoxatvisas. korufciuli praqtikis SesaZlebloba amcirebs moqalaqe-Ta motivacias da aufasurebs mTavrobis legitimurobas. samxreT kavkasiis samive saxelmwifo pozitiurad aris CarTu-li korufciasTan brZolis saerTaSoriso TanamSromlobaSi. da mainc, saTanado sazogadoebrivi moTxovnis, xelisufle-bebis mkafio nebis, samoqalaqo sazogadoebis gaZlierebisa da myarad garantirebuli demokratiuli Tavisuflebebis, gansakuTrebiT, mediis Tavisuflebis gareSe, korufciisTvis niadagi yovelTvis darCeba.

samxreT kavkasiis arc erTi saxelmwifo ar gaTavisuf-lebula korufciisgan, Tumca TiToeulma maTganma masTan brZolaSi garkveul dones miaRwia da momavalSic uamravi ram aqvs gasakeTebeli, raTa Semdgomi winsvla hqondes. ma-Sin, rodesac saqarTvelos prevenciul, umTavresad insti-tuciur, zomebze sWirdeba koncentrireba, somxeTma ufro efeqtianad unda imoqmedos politikuri dafinansebis meti

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gamWvirvalobis, marTlmsajulebis sistemisadmi ndobis zrdisa da am procesSi samoqalaqo sazogadoebis meti Car-Tulobis uzrunvelsayofad. azerbaijani kidev ufro rTuli sistemuri problemebis winaSe dgas kanonebisa da regula-ciebis efeqtiani ganxorcielebis sferoSi. SerCeviTi samar-Tali, gavleniT Riad vaWroba da samoqalaqo sazogadoebis SezRudva xels uSlis sajaro institutebisadmi ndobis gaCe-nas. realuri politikuri pluralizmis, Tavisufali mediisa da aqtiuri samoqalaqo sazogadoebis monawileobis gareSe rTuli iqneba korufciis winaaRmdeg brZolis warmatebiT gagrZeleba.

retrospeqtiuli analizi aCvenebs, rom saqarTvelom, somxeTma da azerbaijanma korufciasTan brZola TiTqmis Tanabari poziciebidan daiwyes, msgavsi instrumentebiTa da warmatebis erTnairi perspeqtiviT. marTlac, SesaZloa ar-sebobdes pirdapiri korelacia evrointegraciis sferoSi saqarTvelos SedarebiT warmatebas, kerZod, evrokavSirTan TanamSromlobis ormxriv dRis wesrigSi progressa da ko-rufciasTan qveynis warmatebul brZolas, Soris. 2006 wels samxreT kavkasiis samive qveyanam evropis samezoblo politi-kis erTnairi 5-wliani samoqmedo gegma miiRo, magram sazoga-doebis didma mxardaWeram da ambiciam, evrokavSirTan urT-ierTobebSi progresisTvis mieRwia, saqarTvelos mTavroba ufro yuradRebiani gaxada evropuli da saerTaSoriso moni-toringis organoebis moTxovnebis mimarT.

somxeTis da azerbaijanis axlandeli mTavrobebis distancireba evropuli integraciis dRis wesrigisgan nam-dvilad Seamcirebs ambicias, intensiurad SeebrZolon ko-rufcias da amave dros SezRudavs evropuli struqturebis SesaZleblobas da berketebs, rom am mTavrobebze am kuTxiT moaxdinos gavlena.

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