Response to interpellation 2024/25:254 on the election in Georgia and Sweden's actions within the EU

Utrikesministern Maria Malmer Stenergard (M)

Madam Speaker! I have been asked how I view the developments in Georgia, particularly in light of the election observers' conclusions on the election, what measures Sweden has taken within the framework of the EU after the election to ensure that Georgia continues on its democratic reform path, and how I intend to work to support civil society and democratic forces in Georgia in light of the reported irregularities.

The development in Georgia is very worrying. During 2024, several laws have been passed that restrict civil society and curtail the enjoyment of human freedoms and rights. In connection with the parliamentary election on 26 October 2024, election observers, including from the Organization for Security and Co-operation in Europe, reported several irregularities. On 28 November 2024, Georgian Dream announced that the party does not intend to initiate EU accession negotiations before 2028 and that it intends to forgo all financial support from the EU during the same period. The announcement has triggered large-scale protests in many places in Georgia. In several cases, excessive force has been used against both demonstrators and journalists.

Sweden has been proactive in ensuring that the EU clearly marks its stance against the developments, including by requesting that the Foreign Affairs Council addresses Georgia. Georgia was last discussed on December 16 at the foreign ministers' meeting in Brussels. There, I pointed out that Sweden wants to see sanctions against those responsible for the violence against protesters and underlined the importance of redistributing frozen EU funds to Georgia to civil society. I also requested further analysis from the European Commission on the possibilities of suspending the freedom of visa issuance for diplomatic and service passports, as this would constitute an important signal that one cannot benefit from the advantages that come with a close relationship to the EU without living up to its commitments. I welcome that the Commission has now presented such a proposal.

Sweden has advocated for the EU to pause its support to Georgian authorities, which has now also occurred, including the support through the European Peace Facility. Sweden has on several occasions urged the EU and its member states to increase support to the pro-European forces in Georgia, not least civil society. A reallocation of the EU's support with this focus is underway. The Government decided in October 2024 to task Sida with pausing the remaining direct collaborations with Georgian authorities. Instead, during 2024, Sweden has increased support to Georgian civil society by 25 million kronor.

Since the developments in Georgia have continued to go in the wrong direction over the past few weeks, the Nordic-Baltic foreign ministers have also issued a joint statement further emphasizing the Georgian authorities' responsibility to find a way to restore confidence in the country's democratic institutions. We urged, for example, the Georgian authorities to implement the OSCE's recommendations and to consider the possibility of organizing new elections based on these recommendations.

The speech at riksdagen.se, in Swedish (opens in a new tab)

Johan Büser (S)

Mr. Speaker! Thank you to Foreign Minister Maria Malmer Stenergard for the answer to my interpellation!

The development in Georgia is deeply worrying, just as the Foreign Minister said, and it requires our attention. I personally had the privilege of participating as an election observer at the election that took place in the autumn. I observed in Telavi in the eastern parts of Georgia together with several of my colleagues. On site, we witnessed many of the shortcomings that have been reported collectively by OSCE, ODIHR and other organizations - extensive reports that voters were subjected to threats and pressure.

The media in Georgia, especially the state-controlled ones, favored the ruling party. This limited the voters' opportunities to make informed decisions. State resources were used to favor the ruling party. Furthermore, it could be stated that there were irregularities in the election administration itself.

Even though some parts of the Georgian electoral process met international standards, the whole was truly undermined by the problems that I have mentioned. These are also conclusions that have been presented clearly.

When it comes to Georgia, this is not just a question of a single election. It is part of a larger negative trend, where we see how democratic principles and the principles of the rule of law are gradually being eroded in Georgia. The country was once a model for democratic reforms in the Caucasus region. But it has taken steps backward, and this is happening at the same time as the Georgian government clearly signals that it prioritizes concentration of power over a close relationship with the EU. Beside them, of course, stand Russian interests, cheering for this development.

The announcement from the ruling party Georgian Dream that they are postponing the EU accession negotiations until 2028 and are abstaining from financial support from the EU is a slap in the face to all those Georgians who are protesting for an approximation to the EU. These protests have been met with excessive force from the authorities, and we see that fundamental civil and political rights such as freedom of expression and freedom of assembly are being set aside.

At the same time, Mr. Speaker, we see that there is hope. Civil society in Georgia, as well as many individual people, are still strongly committed to bringing the country closer to the EU. Here, we as a country and as fellow human beings have a moral and political obligation to support them.

I therefore have two supplementary questions for the Minister for Foreign Affairs.

Question one: In addition to what has already been done and beyond what Sweden has already put forward, does the Foreign Minister see further measures that Sweden and the EU can consider to pressure the Georgian government to respect democratic principles? If so, what are these?

Question two: How does the government ensure that the redistribution of support from the government to civil society actually reaches the right actors?

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Kadir Kasirga (S)

Mr. Speaker! Thanks to Johan Büser for raising an important and pressing question about the developments in Georgia! Thanks also to the Minister for the answer!

Georgia is a country that has fought hard to approach the EU and which has a strong civil society that fights for democracy and the principles of the rule of law. But after the latest election, we see a worrying development. The election observers have reported extensive irregularities, including pressure on voters, deficiencies in the election administration, and undermined credibility for the process as a whole.

I visited Georgia last year as part of the Swedish OSCE delegation. I saw how important these issues are for many Georgians. Civil society representatives and the young people we met spoke passionately about their commitment to the EU and democracy. They see the EU as a future where rights, freedom, and opportunities are in focus - in contrast to Russia's authoritarian influence. But at the same time, there is a deep concern and disappointment. Many feel that the EU has not done enough, especially after Russia's invasion of parts of Georgia in 2008.

We visited the border area of South Ossetia where people live under difficult conditions, divided by barbed wire and demarcation lines that sometimes run straight through their houses. There we also met Swedish representatives for the EUMM, who do important work to create security. But that work needs to be followed by political and economic initiatives from the EU.

Mr. Speaker! It is here that Sweden has a central role to play. Georgia faces strong authoritarian forces, both internally and externally, but there are still progressive forces and a civil society fighting for democracy. They need to feel that we stand by their side.

That is why I want to ask the Minister for Foreign Affairs how she and the government can ensure that those who are fighting for democracy in Georgia, especially the strong civil society, do not feel abandoned.

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Carina Ödebrink (S)

Mr. Speaker! I thank Johan Büser for raising this important question about the situation in Georgia. I also thank the Minister for the answer. There is a broad consensus in the Swedish Riksdag regarding the worrying developments in Georgia as well as the need for both condemnation and criticism of the regime and the incredibly important support for a democratic development.

As a member of the Swedish OSCE delegation, I was also one of the election observers during the autumn elections. I am also a rapporteur for the OSCE/PF's Third Committee on Democracy and Human Rights, so this is an issue that is very close to my heart.

Just as Johan Büser has explained, it is clear that Georgia in recent years has taken worrying steps in a direction that leads away from Europe and the EU and away from democracy and human rights. The Georgian Dream party, which has been in power since 2012, follows an authoritarian course and staged the election in October as a choice between war and peace.

Some parts of the development we are now seeing are the Russian agent law, increased repression against LGBTQI persons and their organizations, as well as the changes in the electoral law which meant the abolition of gender quotas for women on the ballots. There are few women represented on the ballots, and issues concerning women were missing from the political agenda at the autumn election.

Georgia has clear legislation regarding discrimination based on gender or national, ethnic, linguistic, or religious affiliation. The country has also prohibited discrimination based on sexual orientation or gender identity. Despite this, in all these areas, we can see that people are subjected to influence, threats, and hate in a way that is completely unacceptable.

Just as my colleague Kadir Kasirga said, the Swedish OSCE delegation conducted a field study in Georgia last year. We met, among other things, civil society organizations, media, and other organizations.

I have a question I would like to raise specifically. Yesterday, we were able to read in the online newspaper EU Observer about the EU missions that are in Georgia. They are the only remaining civilian monitoring missions that exist in Georgia, and they constitute an important stabilizing force in the region. In December 2024, they were extended for an additional two years. The continued presence of these missions in Georgia is of incredibly important strategic significance for the EU when it comes to monitoring Russian activity in these regions and in the Black Sea. I would like to ask the Minister for Foreign Affairs how she views these missions' mandate moving forward against the background of the change we see regarding the Georgian regime and an approach toward Russia. How does the Minister view this?

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Utrikesministern Maria Malmer Stenergard (M)

Mr. Speaker! First, I would like to thank Johan Büser for submitting this interpellation, which is incredibly important. I am glad that there is a broad consensus in the Riksdag. I also thank you for important reflections from the assignment as an election observer, even though they are very disheartening.

Sweden has for a long time supported Georgia's democratic development. Just as Johan Büser said, Georgia was for a long time a model in the region with its reform progress. It is therefore particularly sad that the development in Georgia during the past year has shown such serious democratic setbacks. During 2024, the ruling party Georgian Dream pushed through several laws that limit Georgian civil society and restrict the enjoyment of human rights, just as the interpellor has pointed out. The law on transparency for foreign influence was adopted in the spring of 2024, despite the president's explicit veto. During the autumn, the package of laws on family values was adopted, which restricts the Georgian population's and in particular LGBTQI persons' enjoyment of human freedoms and rights.

Sweden and the EU have clearly signaled against these laws, and we will continue to do so. We will constantly try to find the best way to exert influence but also to support the democratic forces that exist in Georgia. We are well aware of the clear Russian influence that exists and that it must be taken into account. Ensuring that the money goes to the right actor is always a challenge, regardless of which country one operates in, but there can be different types of challenges. It is something that we constantly work on on our own but also together with others. Here, it is a matter of following the developments very closely.

Former Minister for Development Cooperation and Foreign Trade Johan Forssell visited Tbilisi on May 7 and was then clear that the law on transparency for foreign influence is not in line with either Georgia's EU ambitions or the Union's norms and values. He also emphasized that an adoption of the law would mean that Georgia moved away from its stated and current goal of approaching the EU. I myself clearly signaled against the Georgian law package on family values as soon as it was adopted and pointed out then that it goes against Georgia's international commitments.

Sweden has also expressed strong concern regarding the irregularities before and during the election in Georgia that, among other things, election observers have reported on. The information pointing out that the parliamentary election was characterized by a very uneven playing field to the advantage of Georgian Dream is, of course, extremely serious. Extensive pressure was exerted on voters before and during the election, as well as surveillance of voters on election day. It is therefore difficult to describe the election result as a reflection of the Georgian people's will.

Together with my Nordic and Baltic foreign minister colleagues, I have therefore underlined the importance of Georgia restoring confidence in the country's democratic institutions. We have taken the lead in that constellation to put Georgia on the agenda of the EU's foreign minister meetings and introduce sanctions for those responsible for the violence against protesters, and it is something that we will continue to work for. It is a way forward that I see. But we will also continue the support for Georgia's pro-European forces.

According to opinion polls, the majority of the Georgian population is positive towards the EU path. Therefore, it is important that Sweden and the EU continue to support the pro-European forces that still exist in Georgia, not least in civil society, even if the ruling party does not express this. We do this by expanding our support to civil society organizations that actively work to preserve European values and principles and push forward in the EU so that other member countries will do the same.

Everything I have just expressed, I hope, also answers the question that Kadir Kasirga asked about how we ensure that the pro-European constructive forces do not feel abandoned.

The speech at riksdagen.se, in Swedish (opens in a new tab)

Johan Büser (S)

Mr. Speaker! I thank the Minister for Foreign Affairs for the initiatives that have been taken so far regarding Georgia. Furthermore, both I and the Minister for Foreign Affairs were present at the OSCE Ministerial Council meeting in Malta just before Christmas. I appreciated that the Minister for Foreign Affairs informed me then, and also that she, in her speech on behalf of Sweden in Valletta, expressed sharp criticism and concern regarding the developments we are seeing in Georgia.

Yes, there is a great value in that we here in the Swedish Riksdag, regardless of party, as well as the state within the EU, are involved and marking our position against this development. It is positive to hear that we have been proactive in, for example, raising the issue of Georgia in the Council for Foreign Affairs, but it is also important to now and in the future ask the question: Are we doing enough?

I have, together with the colleagues who also observed the election in Georgia, reported on how we saw at close range how democracy is threatened when those in power exploit their positions to restrict the opposition and manipulate the electoral processes. In Georgia, it is not just about technical problems or administrative deficiencies, but it is about systematic attempts to cling to power at the expense of the Georgian people's rights and its longing to join the European Union community. It was also against this background that the autumn election was invalidated.

We have been able to follow this gradual change in Georgia and this development in Georgian society for some years.

I have visited Georgia in various capacities over the last few years. There, warning signs have been clear for a long time. Organizations such as Transparency International have been very clear about how they view the development. The political opposition has expressed concern for a long time, as has civil society, not least LGBTQ+ people who have mentioned it very poorly.

The question earlier from my colleague and member Carina Ödebrink regarding the EU mission, which we visited together, and its future is also relevant in this context against the background of the developments.

It is clear that the current Georgian government is deliberately distancing itself from the EU and our shared values. Sanctions against those responsible for the violence against protesters are an important signal, but we must be ready to go further if the situation continues to worsen. One can consider broader sanctions against government officials and their economic interests and further tighten the requirements that the OSCE's recommendations be fully implemented.

Another important issue that we have already touched upon concerns the long-term support for civil society. I welcome, of course, that Sweden has increased its support by 25 million kronor, but we know that these funds may not always be easy to get to the right actors. Georgian organizations working for democracy and human rights are now under enormous pressure and need more than just financial support. They also need political support and security in order to be able to operate freely.

A positive and important force in Georgia who has been very clear that the election was not legitimate and that the interests of the Georgian people and civil society are under strong pressure is President Salome Zurabishvili. As recently as December, she met with representatives from various states. Therefore, I would like to ask the Minister for Foreign Affairs if she intends to meet Georgia's elected president Salome Zurabishvili in the near future, if there are any such plans. I believe it would be an important signal to meet her.

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Kadir Kasirga (S)

Mr. Speaker! Thank you, Foreign Minister Maria Malmer Stenergard, for the answer! It is also pleasing to hear that we are in agreement across party lines regarding the developments in Georgia.

As both Johan Büser, Carina Ödebrink and the Foreign Minister have said during the debate, the government in Georgia exhibits authoritarian tendencies. They have not failed to crack down on civil society and counteract the progressive movements. At the same time, Russia continues to exploit the situation to strengthen its influence in the region.

Mr. Speaker! Despite this, I see that there is still hope. I want to return to the field visit we made in Georgia last year, when we met civil society, the LGBTQ+ movements, and the women's movements. They look forward to continued support from the EU, and they see their future in the European community and not with Russia.

Therefore, it is important that we take their appeal and their struggle most seriously. I hear that the Minister for Foreign Affairs agrees with this, and that is pleasing.

I would like to thank you for the debate, and I thank the interpellor Johan Büser for raising this important issue.

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Carina Ödebrink (S)

Mr. Speaker! I will begin by thanking you for a very good and important debate, and I direct that both to my colleagues and to the Minister.

Sweden has for many years been one of the largest individual bilateral donors to the local LGBTQI movements in Georgia. As a country, we have been crucial in securing human rights in Georgia. It is important and good to have a political consensus, both when it comes to condemning and pausing cooperation with Georgian authorities and when it comes to supporting civil society.

But if the Russian agent law is implemented, support for civil society will be seen as influence from abroad. This could lead to sanctions. How will the cooperation between Georgia and Sweden then be affected, for example when it concerns Sida or UN Women? There is a well-established cooperation there.

It is good that we in the Riksdag and the government are in agreement regarding the support for Georgia and the condemnation of the developments. But at the same time, it cannot be ignored that the government, together with the Sverigedemokraterna, has cut the grants for international work. This might not affect Georgia in this situation, but generally, in the long run, it could mean that work within, for example, Sida has to be discontinued. We have already seen such things happen. I would very much like to hear the minister say something about this.

Finally, I did not quite perceive that I received an answer on how the Minister views the development for the EU missions now that we have a regime in the country that is moving in an increasingly authoritarian direction.

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Utrikesministern Maria Malmer Stenergard (M)

Mr. Speaker! On November 28, 2024, Georgian Dream announced that Georgia would not initiate EU accession negotiations before 2028 and that it would forgo all financial support from the EU during the same period. This, if anything, testifies to the fact that Georgian Dream has no genuine will to implement the measures that the EU has demanded.

We agree with the EU's powerful condemnation of the violence. Together with several other states, we have activated the Vienna Mechanism within the OSCE. The mechanism means that Georgia now needs to answer how freedom of assembly and freedom of expression shall be ensured and how accountability can be achieved regarding the violence against protesters.

Sweden also welcomes that the European Commission has submitted a proposal to suspend the visa-free regime for diplomatic and service passports, and we look forward to the continued consideration of this in the Council. This sends a clear signal about the consequences of Georgian Dream's policy for relations with the EU without directly affecting the predominantly EU-positive Georgian population.

Sweden also wants, as mentioned, to see sanctions against those responsible for the violence against protesters, which I also raised in the council. There are many who stand behind this, but unfortunately, we do not have the unanimity required in this case.

Since last spring, Sweden has also been pushing to pause the payments from the European Peace Facility and the EU's other support to Georgian state actors. In November, the Commission announced that the EU had paused payments of 121 million euros that were to have been shared by Georgian state actors.

Commissioner for Enlargement Marta Kos announced in the Council for Foreign Affairs on December 16 that the Commission is now investigating how to redirect further funds to civil society and independent media. This is important, and it is entirely in line with Sweden's direction that support should be redirected to Georgian civil society. It is also a model that I note the Georgian opposition has highlighted as a model.

The question of the EU mission, I believe we will need to discuss moving forward. I have no clear answers to give today, but I look forward to continuing to discuss this.

This is a genuinely prioritized area for Sweden and for Swedish support in various ways, also for aid. The Government has no plans to de-prioritize this.

Meeting the president is, of course, something I would gladly do. There is no scheduled meeting. When it comes to any potential visits to Georgia, one must consider quite carefully how such a visit would be carried out. One does not want to risk legitimizing the Georgian dream.

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Johan Büser (S)

Mr. Speaker! Thank you, Minister for Foreign Affairs, for that answer! I completely agree when it comes to the need to not in any way legitimize the party Georgian Dream given what the party has shown itself to stand for.

But apart from this, Georgia is a country with great potential that stands at a decisive crossroads. We see a Georgian government that chooses to distance itself from the EU and our values, but we also see a people who continue to fight for democracy, freedom, and closer cooperation with Europe.

It is our duty to give them all the support we can. Here, Sweden and the EU have an important role to play, not only through financial assistance but also by putting pressure on the Georgian government and showing that there are simply consequences if one violates fundamental democratic principles.

I want to conclude this interpellation debate by emphasizing that our long-term goal must be to help Georgia return to a democratic reform path. This means supporting civil society, free media, and other democratic actors. And it means that the EU's door must always be open for countries that are willing to respect our common values.

I would like to conclude by thanking the Minister for the debate today. Let us now continue the work together by clearly working for a free, peaceful and democratic Georgia, as part of a safer world!

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Utrikesministern Maria Malmer Stenergard (M)

Mr. Speaker! Although the EU mandate has stalled due to the actions of the Georgian dream, we want to work to ensure that the EU maintains its principled support for Georgia's sovereignty and territorial integrity.

Sweden is ready to work for Georgia's EU rapprochement together with all forces that genuinely stand behind European values and principles, but from the Georgian government's side, trust in its democratic institutions must be restored. Restrictive legislation that is not compatible with EU norms and values must be repealed and disinformation about the EU must be combated. To resume its stated goal of approaching the EU, Georgia must also take credible steps to change course and resume the reform process.

Georgian authorities must take steps in this direction, including by implementing OSCE's recommendations and considering the possibility of organizing new elections based on these recommendations, which we have, therefore, stated clearly in the Nordic-Baltic circle.

I would like to thank you again for the debate. It is incredibly important. It is important that we have a great consensus between the parties in the Riksdag. Not least when it comes to standing strong against clear pressure from Russia, it is of even greater value that we stand united, so for this I thank you very much.

The interpellations debate was hereby concluded.

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