Informational use only. Research and analytical commentary. Not legal advice. For authoritative text see Matsne.gov.ge.
Overview
Georgia's First Comprehensive Workplace Safety Law
The Law on Occupational Safety (2018) is Georgia's first systematic legal framework for preventing workplace accidents and occupational diseases. Before 2018, workplace safety was governed only by scattered Labour Code provisions and technical regulations, leaving workers — particularly in mining, construction, and manufacturing — without meaningful legal protection.
The law was driven by ILO technical assistance, DCFTA obligations under Chapter 13, and persistent civil society pressure following a series of fatal workplace disasters. It established a prevention-first philosophy aligned with ILO C155 and C187, requiring employers to conduct risk assessments, provide training and PPE, and appoint responsible OSH officers.
Initially covering six hazardous sectors, the law was extended to all workplaces by 2021 following the 2019 Anauri mine explosion that killed seven workers and catalysed major strengthening of the enforcement regime.
Historical development
From Disaster to Framework: 2009–2024
2009–2016 — Legislative vacuum
Repeated fatal accidents with no framework law. Tkibuli mine (2009, 8 deaths), Chiatura mining (2014), Rustavi metallurgical plant (2013). ILO Committee of Experts repeatedly cited Georgia for failure to implement C155. Labour Code contained only 3 articles on safety with no enforcement mechanism.
2016–2018 — Drafting and adoption
ILO-assisted drafting process. DCFTA Chapter 13 commitments made adoption mandatory. GTUC campaign following 3 Tbilisi construction deaths in 2016. Law adopted 2 June 2018, entered into force 11 July 2018. Phase 1: mining, construction, manufacturing, energy, transport, healthcare — approximately 200,000 workers.
2019 — Anauri disaster accelerates reform
Anauri mine explosion kills 7 workers. Parliamentary investigation found LIS understaffed and under-resourced. Government committed to: universal coverage by 2021, doubling inspector complement, criminal liability for gross OSH violations causing death, and GEL 10,000 maximum fine (increased from GEL 2,000).
2021–2023 — Universal coverage achieved
All employers in all sectors now covered. Mandatory risk assessment, OSH responsible person (for 20+ employee enterprises), accident reporting, and PPE provision. Psychosocial risks added as recognised workplace hazard. Domestic workers remain the only significant exclusion — estimated 40,000–60,000 persons unprotected.
Workplace Fatal Accidents — Georgia 2015–2023
Recorded fatal workplace accidents per year. OSH Law adopted 2018; universal coverage 2021. Source: LIS Annual Reports.
Source: Labour Inspection Service Annual Reports 2015–2023. 2018 = OSH Law adopted. Spike in 2019 due to Anauri mine disaster. 57% fatality reduction 2019→2023.
All employers and employees in Georgia's private and public sectors (since 2021). Includes trainees, apprentices, and self-employed persons working within an enterprise. Domestic workers in private households remain excluded — affecting an estimated 40,000–60,000 workers, predominantly women.
GILS note: The domestic worker exclusion conflicts with ILO C189 (which Georgia has not ratified) and the gender equality commitments in the 2010 Gender Equality Law. Extension of OSH coverage to domestic workers is a priority recommendation.
Article 3 — Key Definitions
Core Legal Concepts
"Hazardous work" — exposure to chemicals, radiation, extreme temperature, noise above 85dB, ergonomic risk factors, or biological agents. "Workplace accident" — any unplanned event causing injury during work. "Occupational disease" — disease arising from work conditions, on the approved MLHSA list (List last updated 2011 — outdated). "Risk assessment" — systematic identification and evaluation of workplace risks. "Psychosocial risk" — added 2020, covering stress, burnout, harassment, and violence.
Chapter II — Employer Obligations (Articles 6–12)
Articles 6–12
Core Employer Duties
Art. 6: Written risk assessment mandatory; updated every 3 years minimum or after significant change. Art. 7: Enterprises with 20+ employees must appoint a qualified OSH responsible person. Art. 8: Mandatory OSH training before work commencement and annually. Art. 9: Employer provides PPE free of charge appropriate to identified risks. Art. 10: Fatal accident reporting to LIS within 24 hours; non-fatal within 5 working days. Art. 11: OSH management system required (ISO 45001 or equivalent accepted). Art. 12: Pregnant employees — prohibition on night work, overtime, and hazardous work from pregnancy notification.
GILS note: The 3-year risk assessment cycle is insufficient for high-hazard workplaces. EU Directive 89/391 requires continuous assessment. Recommend annual mandatory review for workplaces with 3+ significant risks identified.
Chapter III — Employee Rights (Articles 13–17)
Articles 13–17
Worker Safety Rights
Art. 13: Right to information about risks; right to refuse work presenting imminent serious danger without penalty; right to OSH training at employer cost. Art. 14: Joint OSH Committee mandatory in enterprises with 20+ employees. Art. 15: Committee functions — monitoring, accident investigation, corrective measure recommendations. Art. 16: OSH representatives have protected status against dismissal or penalty for OSH activities. Art. 17: Direct whistleblower reporting to LIS without employer notification — protected.
Chapter IV — Enforcement and Penalties (Articles 20–27)
Articles 20–27
LIS Powers and Sanctions
Art. 20: LIS inspectors may enter any workplace without prior notice, examine all documents, interview employees privately, take samples and test equipment. Art. 21: Sanctions — written warning (first minor violation); administrative fines GEL 500–10,000; immediate suspension for imminent danger. Art. 22: Criminal liability — employer/manager faces up to 3 years imprisonment for OSH violations causing death. Art. 23: Repeat violations within 1 year — fines doubled plus mandatory suspension. Art. 24: Occupational injury compensation — employer liable for medical costs, lost earnings, and rehabilitation expenses.
GILS note: Maximum fine of GEL 10,000 (≈USD 3,700) is too low to deter large construction and mining employers where OSH non-compliance can save hundreds of thousands of GEL. Recommend tiered fines up to GEL 100,000 for serious violations causing injury.
GILS Analysis
Progress Made — and What Remains To Do
Key achievement: Workplace fatalities fell 57% from 2019 (127 deaths) to 2023 (54 deaths) — a direct outcome of the law's adoption, the 2019 enforcement strengthening, and expanded inspection capacity. Georgia now has a prevention-oriented framework where none existed before 2018.
Persistent gaps: Domestic workers excluded (~40–60k workers). Occupational disease recognition list outdated (2011). Maximum fine GEL 10,000 — insufficient deterrent for large employers. Inspector ratio 1:14,200 — above ILO recommended 1:10,000. No mandatory workers' compensation insurance — injured workers must litigate to recover costs, a process taking 2–4 years.
GILS Policy Recommendations
Five Priority Amendments
Recommendation 01
Include Domestic Workers — amend Article 1(3)
Remove the domestic worker exclusion. ~40,000–60,000 predominantly female domestic workers have no OSH protection. Amendment should specify domestic employers with paid household workers are "employers" under the OSH Law with proportionate obligations. Ratification of ILO C189 should accompany this change.
Update Occupational Disease List — MLHSA Decree revision
The occupational disease recognition list (MLHSA Decree No. 97-n, 2011) is 13 years out of date. It does not include: musculoskeletal disorders (60% of EU work-related conditions); work-related mental health disorders (burnout, PTSD in emergency workers); new chemical/biological exposures (nanoparticles, endocrine disruptors); COVID-19 as occupational disease for healthcare workers. Revised list needed by 2025, with annual technical committee updates.
EU Recommendation 2003/670/EC · Germany (BKV Annex) · France (Code SS)
Recommendation 03
Increase Maximum Fines — amend Article 21
Introduce tiered fine structure: Category A (minor procedural): GEL 500–2,000. Category B (substantive risk violations): GEL 2,000–20,000. Category C (violations causing or risking serious injury): GEL 20,000–100,000. Category D (death or repeat Category C): GEL 50,000–200,000 plus mandatory criminal referral. Large employers (turnover over GEL 5M) should face minimum 0.5% of turnover for Category C/D violations.
Germany (ArbSchG: up to EUR 25,000) · France (Code du Travail: up to EUR 10,000/violation)
Recommendation 04
Mandatory Workers' Compensation Insurance — new Chapter Va
Georgia has no mandatory occupational accident insurance. Injured workers must litigate — a process taking 2–4 years inaccessible to most workers. New Chapter Va should establish: mandatory employer-funded occupational accident insurance (estimated premium 0.3–1.2% of payroll by sector risk class); no-fault compensation payable within 30 days of confirmed work accident; rehabilitation and retraining support. Can be administered through the existing Pension Agency.
Expand LIS Inspector Complement — Government Resolution
With ~120 inspectors for a workforce of ~1.7 million, Georgia's ratio (1:14,200) exceeds the ILO recommended maximum of 1:10,000. Phased expansion to 200 inspectors by 2026 and 280 by 2028. Inspector salaries benchmarked to civil service grade 7. Dedicated OSH inspector training academy with ILO LAB/ADMIN technical assistance.
ILO LAB/ADMIN · Estonia (Labour Inspectorate) · Lithuania (State Labour Inspectorate)
"The 57% reduction in workplace fatalities between 2019 and 2023 demonstrates what consistent enforcement of a well-designed law can achieve. The remaining challenge is closing the gap for the most vulnerable workers — those in domestic service, small informal enterprises, and the agricultural sector."
— GILS Research Position Paper on Occupational Safety Reform, September 2026