EU Integration and Domestic Adaptation in Georgia

Nutsubidze, Maka and Aleksidze, Tamara (2026) EU Integration and Domestic Adaptation in Georgia. In: EU Enlargement and Successful Integration: Is There a Way? Studies of the Central European Professors’ Network . Central European Academic Publishing, Miskolc-Budapest, pp. 393-440. ISBN 978-615-7027-65-7, 978-615-7027-66-4, 978-615-7027-67-1

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Abstract

This chapter analyses Georgia’s implementation of the EU–Georgia Association Agreement (AA), signed in 2014 and in force since 2016, through the sectors of minority education and water governance. It examines how ‘EU conditionality’ interacts with domestic adaptation, exposing tensions between formal legal approximation and context-sensitive application, fault lines strategically exploited by anti-EU actors in hybrid warfare. To capture Georgia’s pragmatic balancing of EU norms with local needs, institutional capacity, and political realities, this chapter advances the concept of ‘smart alignment’. Anchored in ‘Europeanization’ and legal harmonisation theory, and drawing on EU progress reports, national legislation, policy documents, and civil society monitoring, this study assesses both normative convergence and functional divergence. Structured in three parts, it first situates the AA within Georgia’s legal and political context, then explores the ‘1+4’ programme as a lens on minority integration, and finally examines water governance and public safety under EU environmental directives. These case studies highlight the contrasting dynamics of social policy implementation and technical regulatory alignment, offering an insight into how smaller states with limited institutional capacity can achieve meaningful convergence with EU standards while preserving political legitimacy and operational effectiveness.

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