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When the Georgian parliament passed amendments to the “Law on Tourism” in December 2024, the new rules seemed poised to reshape the landscape of the tourism industry. The law requires all tour operators, agents, and guides to register in the National Public Registry. However, one of its more controversial provisions, fines for unregistered guides, has been delayed until June 2025. Officially, the government attributes this postponement to the need for “comprehensive communication with the tourism sector.” But is this explanation the whole story? And what deeper cultural and historical currents does this legislative moment reveal about Georgia and its tourism industry?
Legislation Meets Resistance: A Snapshot of the Debate
The requirement for registration (Article 11, Paragraph 2) is already in force. Tour operators, agents, and guides must now document their activities in the National Public Registry, signaling a move towards regulation and accountability. Yet, the enforcement mechanism — fines — is delayed (Article 48, Paragraph 8). This decision follows significant protests from local guides, who have expressed concerns over the influx of foreign competitors they accuse of distorting Georgian history in their narratives. Iranian, Armenian, and Russian guides, they argue, have presented historical narratives that clash with Georgia’s own national identity.
In December 2023, when the initial law was introduced, Georgian guides lobbied heavily for stronger protection. They demanded not only mandatory registration but also a language requirement for guides to ensure they spoke Georgian. Although this demand was not included in the final law, the National Tourism Administration has hinted that relevant regulations might appear in forthcoming subordinate legislation.
A Clash of Narratives: Tourism and National Identity
The protests by Georgian guides tap into broader questions about the role of tourism in shaping and disseminating national identity. Tourism is often viewed as a stage for cultural diplomacy, where nations project their histories and values to the world. For a country like Georgia, with its rich but contested history at the crossroads of empires, the stakes are particularly high. Allowing unchecked foreign narratives, critics argue, risks diluting or misrepresenting the country’s historical and cultural heritage.
This tension is not unique to Georgia. Throughout the world, debates over who gets to “tell the story” of a place have sparked conflicts. In countries like Italy and Greece, local tour guides have similarly clashed with unlicensed competitors who they accuse of lacking cultural sensitivity or historical accuracy. In these cases, as in Georgia, the issue is not merely economic; it’s existential. Who owns the past? And who has the right to interpret it?
Anthropological and Sociological Perspectives
From an anthropological standpoint, the debate over tour guide registration reflects deeper dynamics of globalization. Tourism, as an industry, thrives on the commodification of culture, transforming intangible heritage into marketable experiences. Yet, this commodification often creates tension between preserving authenticity and catering to international audiences. The protests by Georgian guides reveal a desire to control not just the economic benefits of tourism but also the narrative framework within which their culture is presented.
Sociologists might frame this as a classic case of “boundary maintenance,” a concept introduced by Fredrik Barth. By regulating who can guide tourists, Georgian authorities are implicitly drawing boundaries around who can claim authority over Georgian culture and history. Registration becomes not just a bureaucratic hurdle but a symbolic act of asserting national sovereignty in the cultural domain.
Economic Implications and the Role of the State
The economic dimension of the law cannot be ignored. Tourism is one of Georgia’s key industries, contributing significantly to GDP and employment. By formalizing the sector, the government aims to boost its fiscal oversight and ensure quality control. However, critics argue that the registration requirement could disproportionately burden small, independent guides, pushing them out of the market.
On the other hand, the delay in enforcing fines raises questions about the state’s capacity to implement its own laws. Does this postponement reflect genuine concerns about communication and education within the sector, or does it point to deeper issues of bureaucratic inefficiency?
The Language Question: A Lingering Controversy
The omission of a Georgian language requirement in the law is particularly noteworthy. Language is one of the most potent markers of national identity, and its role in tourism cannot be overstated. Requiring guides to speak Georgian would not only ensure a degree of cultural fluency but also signal a broader commitment to promoting the language as a cornerstone of national identity. The fact that this demand remains unmet suggests ongoing debates within the government about balancing inclusivity and nationalism.
Looking Ahead: June 2025 and Beyond
As the June 2025 deadline for enforcing fines approaches, the tourism sector faces a period of uncertainty. Will the government succeed in “comprehensively communicating” the new rules? More importantly, will these regulations achieve their stated goals of improving the quality and accountability of Georgia’s tourism industry without stifling its growth?
The delay also offers an opportunity for broader dialogue. How can Georgia balance the economic imperatives of a booming tourism industry with the cultural and historical sensitivities it inevitably touches upon? And what lessons can it learn from other nations that have faced similar challenges?
The debate over tour guide registration is about more than just fines and paperwork. It’s a microcosm of the broader tensions shaping Georgia’s identity in an increasingly globalized world. As the country navigates its path forward, it must grapple with fundamental questions about who gets to tell its story, how its heritage is preserved, and what kind of nation it wants to project to the world. Whether June 2025 will mark the beginning of a more regulated, professional tourism industry or the continuation of unresolved tensions remains to be seen. One thing, however, is clear: the story of Georgia, like its history, is still being written.
By Ivan Nechaev
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