That is an interesting and relevant question. I have several very-low-issue service badges awarded to various early -- and I stress early, as in mid-1920s to mid-1930s, before institutional reforms like the Irreproachable Service theme -- Soviet Georgian officials. I believe that these service badges were designed and struck by/for their various agencies without any known official approval or sanction other than the agency head. For instance, I have a very striking 1926 5-Year Service badge of the Georgian People's Militia in silver, gold and black enamel, a 1931 silver and gold 10-Year Service badge from the Georgian Narkomat of Justice and a couple of others that don't show up in common catalogs.
Regarding these badges, I think that they were given to honor high-ranking officials rather than simply to anyone who made it alive through five or ten years of service. I have never heard of any statutes regarding these awards and I doubt if any existed. They are beautiful awards, to be sure. Tbilisi was a very famous jewelry and art center for ages, and they were undoubtedly made here. In fact, even Dmitri Kuchkin had a large facility here.
As to your exact question, my money would be on "whim" rather than "statute", but I admit that I don't know for sure.
Chuck In Oregon
Currently, Chuck In Tbilisi
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