Amid ongoing protest rallies, Georgian Dream spent the year intensifying efforts to suppress dissent by enacting laws that restrict freedom of expression.
The party’s crackdown began in late 2024, when, on December 13, it criminalized several actions that had never previously been considered offenses. Protesters were banned from covering their faces and carrying lasers, while fines for violating assembly and demonstration rules increased tenfold.
This restrictive approach persisted throughout 2025; by year’s end, even standing on a sidewalk could result in punishment.
As the year concludes, here is an overview of the repressive laws adopted by Georgian Dream in 2025 that target freedom of expression:
Spontaneous Assemblies, Extended Detention, and Stiffer Fines
Administrative detention now extends up to 60 days—a fourfold increase from the previous 15-day maximum, imposed by court decision.
- Fines for violating assembly or demonstration rules rose sharply: 2,000 GEL for participants and up to 5,000 GEL for organizers.
- The law now defines “spontaneous assembly” as a gathering that arises immediately, without advance planning, due to an unforeseen major public event.
- New location-based restrictions: blocking court entrances, judges’ residences, or courts brings a 5,000 GEL fine or up to 60 days’ detention.
- Assemblies in closed spaces require written permission from the property owner.
- Blocking entrances, highways, bridges, tunnels, transport hubs, or railways is now prohibited. Penalties for blocking these locations: 5,000 GEL for participants, 15,000 GEL for organizers, with increased penalties—including detention—for repeat offenders.
- The list of aggravating circumstances has expanded: repeat offenses within a year, involvement of minors, group participation, intoxication, or targeting officials performing public duties can all increase penalties.
- Petty hooliganism redefined: public swearing or harassment is now fined 500–3,000 GEL or punished with up to 20 days’ detention; repeat offenses can bring up to 5,000 GEL or 60 days’ detention.
- Stricter sanctions for vandalism: repeat violations now lead to a 2,000 GEL fine or up to 60 days’ detention (previously a maximum of 5 days).
- Harsher consequences for disobeying or insulting police: disobedience is now punishable by a fine of 2,000–5,000 GEL or up to 60 days’ detention. Verbal insults or degrading behavior toward police bring the same penalties, with repeat offenses escalating to 6,000 GEL or 7–60 days’ detention. Offenders may also lose weapon-carrying rights for up to 3 years.
- A new offense targets insults against public officials: verbal or other degrading conduct toward high-level or public officials now carries a fine of 1,500–4,000 GEL or up to 45 days’ detention.
- Amendments to the Criminal Code introduce tougher penalties for incitement to violence, resisting police or officials, threats, and attacks.
The Public Defender warned that these changes disproportionately restrict the rights to assembly, expression, and a fair trial. The Venice Commission also issued a critical assessment of the amendments adopted on 13 December 2024 and 6 February 2025.
Tightening The Speech and Expression Law
In late June, Georgian Dream swiftly passed new amendments further restricting freedom of speech and expression.
With this legislative package, the party intensified its limitations on public discourse.
Notably, the amendments to the Law on Freedom of Speech and Expression eliminated the provision that placed the burden of proof on the party seeking to restrict free speech.
Now, in defamation cases, the burden of proof falls on the defendant, and defamation is more clearly defined as a statement containing a substantially false fact that harms a person’s reputation.
Georgian Dream also removed the safeguard that prevented a court from ruling against a defendant solely for refusing to disclose a professional secret or source in a free speech case.
Administrative Detention for Unpaid Fines
On July 2, Georgian Dream further tightened protest-related laws.
Under the revised Administrative Offenses Code, anyone fined for minor hooliganism, disobeying police, insulting an official, or violating protest rules now faces administrative detention for repeat offenses if they fail to pay the fine.
Appeals for road-blocking cases were also limited: when an offense carries both a fine and possible detention, the fine can only be appealed in court.
A city court’s decision takes immediate effect. Payment of fines is required within the statutory deadline even if an appeal is ongoing, as appealing to a higher court does not suspend the obligation to pay.
Administrative Detention for First-Time Road Blocking
On October 16, the government implemented another set of sweeping restrictions:
- Now, first-time offenses such as wearing a mask, carrying tear gas or toxic substances, blocking roads, or placing temporary structures result in up to 15 days of administrative detention—or up to 20 days if committed by an organizer.
- Participating in a protest that the Interior Ministry orders dispersed, or carrying weapons, pyrotechnics, or other harmful objects, can lead to up to 60 days of detention. Repeat violations are treated as criminal offenses, punishable by up to one year in prison, and up to two years for a third offense.
- A new criminal offense was introduced: insulting or disobeying a law enforcement officer for the third time is now punishable by up to one year in prison, and up to two years for subsequent offenses, with no alternative penalties.
- Criminal Code Article 347 was revised: repeating certain protest-related administrative offenses now constitutes a criminal offense, punishable by up to one year in prison.
- These provisions apply to acts such as blocking streets, impeding movement, erecting hazardous temporary structures, or participating in protests deemed unlawful by the Interior Ministry.
A 61-year-old activist, Zurab Menteshashvili, is currently imprisoned under these provisions for repeated road blocking and has been on hunger strike for two months.
NGOs have warned that the amendments effectively criminalize nearly all forms of protest, echoing the Prime Minister’s call for “systemic steps and zero tolerance” toward participants in the ongoing Rustaveli Avenue demonstrations.
Jail Time for Sidewalk Protests
By the end of 2025, after repeated efforts to halt ongoing protests, Georgian Dream imposed new restrictions specifically targeting sidewalk demonstrations.
Under these stricter rules, holding an assembly or demonstration in areas designated for pedestrian movement now requires advance authorization from the Ministry of Internal Affairs (MIA).
- Organizers must notify the MIA at least five days before a planned event. The MIA has the authority to propose an alternative time or location for the demonstration.
- Notably, administrative detention can be imposed for a first offense of violating these new norms, except in rare circumstances.
- Georgian Dream pushed these repressive amendments through parliament rapidly, passing them within a matter of days.
- Anyone violating the tightened law faces up to 15 days of administrative detention and confiscation of any related objects. Organizers risk up to 20 days in detention.
- For pregnant women, mothers of children under 12, minors, or those with severe or significant disabilities, the penalty is a fine of 5,000 GEL.
- If the organizer falls into one of these protected categories, the fine rises to 15,000 GEL.
Currently, court cases are pending against twenty-three citizens accused of obstructing passersby on Rustaveli Avenue in Tbilisi. Under regulations effective since December 2025, they face up to 15 days in jail.
