Coverage, trends, and key collective agreements in Georgia's formal economy. Data from Geostat Labour Force Survey and ILOSTAT. Updated quarterly.
| Indicator / Segment | Value | Notes |
|---|---|---|
| Public education sector | ~65% coverage | Teachers union (GTUC-affiliated) agreements |
| Healthcare (public hospitals) | ~45% coverage | Healthcare workers union |
| Mining sector | ~38% coverage | Miners union — highest private sector |
| Manufacturing (large enterprises) | ~22% coverage | Enterprise-level only |
| Construction | ~8% coverage | Fragmented, subcontracted workforce |
| Retail and trade | ~5% coverage | Dominated by SMEs without unions |
| Agriculture | ~1% coverage | Near-zero; no sector agreement |
| National average (formal) | ~18% coverage | CEACR observation: too low |
Source: Geostat Labour Force Survey; ILOSTAT. All figures refer to latest available period unless stated.
Georgia's collective bargaining coverage of ~18% is well below the EU average of ~56% and the ILO target for effective social dialogue. The primary constraints are: no erga omnes extension mechanism (agreements bind only signatories), no obligation for employers to recognise unions even where they represent a majority, and a history of anti-union discrimination in the private sector. The CEACR has issued observations on C098 (Right to Organise and Bargain) noting inadequate government promotion of collective bargaining. The DWCP 2024–2028 targets an increase of 5 percentage points in coverage by 2028. See Social Dialogue → and GTUC →
Social Dialogue → · Org Gtuc → · Law Trade Unions → · Tripartite Commission →
Collective bargaining — the process by which workers, through their trade unions, negotiate wages and working conditions with employers — is the primary mechanism through which workers in market economies exercise power over their terms of employment. In Georgia, collective bargaining coverage stands at approximately 5% of the formal workforce — the lowest in the EU neighbourhood and one of the lowest among ILO member states in Europe.
Five percent coverage means 95% of Georgian workers have no collective agreement — their wages, working hours, and working conditions are set unilaterally by their employer, subject only to Labour Code minimums. In this context, the Labour Code minimums become the de facto ceiling, not the floor. The practical result: wages below the living wage for a large share of formal workers, with no mechanism to raise them except individual negotiation from a position of weakness.
Collective bargaining at 5% coverage is not a functional system — it is a vestige. The 95% of Georgian workers without a collective agreement are not better served by unilateral employer determination of wages and conditions; they are simply without voice. GILS's position is unequivocal: Georgia needs a legal mandate for good-faith collective bargaining, effective sanctions for employer refusal, and active ILO-supported capacity building for unions. The 5% coverage figure should be treated as a national emergency — equivalent to a 5% formal employment rate.
The single most impactful legal change: amend Labour Code to require employers to bargain in good faith with a certified trade union representing 20%+ of workers. 'Good faith' defined: timely responses; provision of relevant information; genuine consideration of proposals. Employer refusal or bad faith: LIS-sanctionable offence, GEL 5,000-15,000 fine. ILO DWT has draft amendment text ready.
ILO C098 · CEACR Observation 2024 requirements · ILO DWT draft amendment textGovernment is the largest single employer in Georgia. A comprehensive public sector collective agreement — covering all national government employees — would immediately increase coverage from 5% to approximately 11%. Government can conclude this agreement without any legislative change. MLHSA and Ministry of Finance to lead negotiation with public sector union.
UK Civil Service Agreement · Estonia public sector collective agreement · GTUC public sector unionThree sectors with existing union presence and high coverage gaps: (1) mining — extend Chiatura/Tkibuli agreement sector-wide (GEA and GTUC facilitate); (2) construction — pilot sector agreement covering OSH and minimum sector wage; (3) hospitality — post-COVID sector recovery agreement. ILO facilitates. Target: 3 sector agreements by 2026.
ILO sectoral bargaining model · GTUC sectoral union structure · GEA sectoral associationNo public registry of collective agreements exists in Georgia. Mandate: all collective agreements registered with MLHSA within 30 days of signing; MLHSA publishes registry at mlhsa.gov.ge with: employer, union, coverage, key terms, duration. Enables: monitoring of coverage growth; researcher access; worker information.
Eurofound EIRO collective agreement database · Estonian collective agreement registry · Labour Code amendment requiredWeak unions cannot bargain effectively even where the legal framework supports it. ILO/GILS joint programme: (1) collective bargaining training for 200 union negotiators (3-day workshop); (2) sector research capacity — GILS provides sector wage data to union negotiators; (3) model collective agreement templates for 10 sectors. Cost: GEL 120K (ILO co-funded).
ILO Workers' Activities Bureau · GTUC training programme · GILS sector wage data| Convention / Standard | Subject | Ratified | Compliance | Key Gap |
|---|---|---|---|---|
| C098 | Right to Organise and CB | 1993 | CEACR Observation 2024 | 5% coverage; no good-faith bargaining mandate; employer refusal unpunished |
| C154 | Promotion of CB | Not ratified | n/a | No obligation to actively promote CB at sector or national level |
| C144 | Tripartite Consultation | 1993 | Partial | Tripartite commission exists but advisory only; irregular meetings |