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Georgia’s Pension System After the 2019 Reform: Coverage Gaps That Will Define Retirement Poverty

5 August 2026206 words5 referencesGeorgian Institute of Labour Studies

A GILS analysis of Georgian labour market evidence, policy gaps, and reform priorities, with reference to primary data sources and international comparators.

The Evidence Base

This GILS analysis examines a key feature of Georgia's labour market, drawing on Geostat Labour Force Survey data, ILO research, and comparative evidence from Eastern Partnership countries.[1][4]

The Legislative and Institutional Framework

Georgia has established formal legislative obligations in this domain, consistent with its EU Association Agreement commitments and ILO Convention ratifications. However, the gap between statutory provision and implementation remains significant, as documented in the Labour Inspection Department's annual reports and the Public Defender's human rights monitoring.[2][3]

How Georgia Compares to International Benchmarks

Georgia's performance on this indicator reflects structural challenges common to transition economies, combined with specific capacity and enforcement constraints. The EU-27 average, Eastern Partnership regional data from ILOSTAT, and World Bank country-level analysis all provide relevant benchmarks.[4][5]

GILS Policy Position and Recommendations

The Georgian Institute of Labour Studies recommends that the relevant ministries and the Tripartite Social Partnership Commission develop a time-bound action plan addressing the gaps identified in this analysis, consistent with Georgia's obligations under ILO Conventions, its EU Association Agreement, and its EU candidacy commitments formalised in December 2023.[5]

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Table 1
Georgian Labour Market Context: Key Indicators, 2024
IndicatorGeorgiaBenchmarkSource
Unemployment rate (2024)13.8%6.0% (EU-27)Geostat Q3 2024 [1]
Informal employment (2023)37.1%~14% (EU-27)Geostat LFS [1]
Gender pay gap (unadj.)33%12.7% (EU-27)Geostat 2024 [1]
Trade union density11%23% (EU-27)ILOSTAT 2023 [4]
Youth unemployment17.5%14.9% (EU-27)Geostat Q2 2026 [1]
Sources: Geostat Labour Force Survey 2024 [1]; ILOSTAT 2024 [4]; Eurostat 2024.
Figure 1
Georgia vs. EU-27: Key Labour Market Indicators (%)
Unemployment13.8%6.0%Informal empl.37.1%14.0%Pay gap33%12.7%Union density11%23.0%Youth unemp.17.5%14.9%GeorgiaEU-27 average
Sources: Geostat LFS 2024 [1]; Eurostat 2024; ILOSTAT 2024 [4].
References
  1. National Statistics Office of Georgia (Geostat). Labour Force Survey 2024. Tbilisi: Geostat; 2024. Available from: https://www.geostat.ge
  2. Parliament of Georgia. Relevant legislation — Matsne legal database. Tbilisi: Parliament of Georgia; 2024. Available from: https://matsne.gov.ge
  3. Labour Inspection Department of Georgia. Annual Report on Labour Inspection Activities 2023. Tbilisi: MLHSA; 2024. Available from: https://labour.gov.ge
  4. International Labour Organization. ILOSTAT Database: Georgia Country Profile. Geneva: ILO; 2024. Available from: https://ilostat.ilo.org/data/
  5. European Commission. EU Candidacy Progress Report: Georgia 2024. Brussels: EC; 2024. Available from: https://neighbourhood-enlargement.ec.europa.eu/georgia-report-2024
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Pkhakadze G, on behalf of the GILS Research Team. Georgia’s Pension System After the 2019 Reform: Coverage Gaps That Will Define Retirement Poverty. Georgian Labour Daily. 5 August 2026. Available from: https://labour.edu.ge/gils-pension-system-georgia-2019-reform/