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Comments on the Draft Constitution of Turkmenistan

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Comments on the Draft Constitution of Turkmenistan Warsaw, 21 July 2016 Comments-Nr.: CONST-TKM/288/2016 [AlC] www.legislationline.org COMMENTS ON THE DRAFT CONSTITUTION OF TURKMENISTAN based on an unofficial English translation of the Draft Constitution provided by the OSCE Centre in Ashgabat These Comments have benefited from contributions made by Dr. Tímea Drinóczi, Associate Professor at the Department of Constitutional Law, Faculty of Law of the University of Pécs (Hungary). OSCE Office for Democratic Institutions and Human Rights Ulica Miodowa 10 PL-00-251 Warsaw ph. +48 22 520 06 00 fax. +48 22 520 0605 OSCE/ODIHR Comments on the Draft Constitution of Turkmenistan TABLE OF CONTENTS I. INTRODUCTION ......................................................................................... 3 II. SCOPE OF REVIEW ................................................................................... 3 III. EXECUTIVE SUMMARY ........................................................................... 4 IV. ANALYSIS AND RECOMMENDATIONS ............................................... 9 1. Main International Human Rights Standards Applicable in Turkmenistan ................... 9 2. General Comments .............................................................................................................. 10 3. The National Legal Order and Compliance with International Standards .................... 11 3.1. Hierarchy of Norms and International Standards .....................................................................11 3.2. Control of Constitutionality and Judicial Review System ..........................................................13 3.3. Provisions on Amending the Constitution ..................................................................................16 3.4. Law-Making Procedure and Referenda ......................................................................................18 4. The Institutional Framework and Balance of Powers ...................................................... 20 4.1. General Comments ......................................................................................................................20 4.2. The Executive Branch .................................................................................................................20 4.3. The Parliament ............................................................................................................................26 4.4. The Judiciary ...............................................................................................................................31 4.5. The Prosecution Service ..............................................................................................................36 4.6. The Commissioner for Human Rights of Turkmenistan ............................................................38 4.7. Local State and Self-Government Bodies ...................................................................................41 4.8. Central Commission for Elections and Referenda .....................................................................43 5. Human Rights and Fundamental Freedoms ..................................................................... 43 5.1. General Comments ......................................................................................................................43 5.1.1. Citizens’ v. Individuals’ Human Rights and Fundamental Freedoms and Legal Persons as Right- Holders ............................................................................................................................................................ 44 5.1.2. Linking the Exercise of Rights with the Fulfilment of Duties ................................................................. 45 5.1.3. Restrictions to Human Rights and Fundamental Freedoms .................................................................. 46 5.1.4. Absolute and Non-derogable Rights and Freedoms .............................................................................. 46 5.1.5. State of Emergency and Martial Law .................................................................................................... 48 5.2. Specific Comments on Certain Human Rights and Fundamental Freedoms ...........................49 5.2.1. Right to Liberty and Security, and Fair Trial Standards ....................................................................... 49 5.2.2. Freedom of Religion or Belief ............................................................................................................... 51 5.2.3. Freedoms of Assembly and of Association, and Political Parties .......................................................... 52 5.2.4. Freedom of Opinion and Expression ..................................................................................................... 54 5.2.5. Right to Vote and to Stand for Elections ................................................................................................ 55 5.2.6. Equality, Non-Discrimination and Minority Rights ............................................................................... 57 5.2.7. Economic, Social and Cultural Rights ................................................................................................... 59 5.2.8. Other Rights .......................................................................................................................................... 60 6. Final Comments ................................................................................................................... 60 Annex: Draft Constitution of Turkmenistan (provided as a separate document, available at www.legislationline.org) 2 OSCE/ODIHR Comments on the Draft Constitution of Turkmenistan I. INTRODUCTION 1. On 16 May 2014, the Constitutional Commission on Improvement of the Constitution of Turkmenistan was established to develop constitutional reform proposals for the country. In the course of its regular session held on 2 February 2016, the Commission adopted a Resolution on approval and submission of the Draft Constitution of Turkmenistan (hereinafter “the Draft Constitution”) for nation-wide discussion. The Turkmen and Russian versions of the Draft Constitution were thereafter published in governmental mass media for nation-wide discussion on 15 February 2016. 2. On 25 March 2016, the Head of the OSCE Centre in Ashgabat sent a letter to the OSCE Office for Democratic Institutions and Human Rights (hereinafter “OSCE/ODIHR”) asking the OSCE/ODIHR to prepare a legal review of the Draft Constitution of Turkmenistan (hereinafter “the Draft Constitution”). 3. On 1 April 2016, the OSCE/ODIHR Director responded to this request, confirming the Office’s readiness to prepare legal comments on the compliance of the Draft Constitution with international human rights standards and OSCE human dimension commitments. 4. Previously, in 2008, the OSCE/ODIHR had already reviewed and issued an Opinion on Constitutional Reform Proposals submitted on 22 May 2008 by the Constitutional Commission on Improvement of the Constitution of Turkmenistan (hereinafter “the 2008 ODIHR Opinion”).1 5. The following Comments were prepared in response to the above-mentioned request as part of OSCE/ODIHR’s general mandate of supporting OSCE participating States and OSCE field operations in legal reform efforts related to the OSCE human dimension. The Comments have also been the subject of informal consultations with the OSCE High Commissioner on National Minorities. II. SCOPE OF REVIEW 6. The scope of these Comments covers only the Draft Constitution submitted for review. At the same time, given the magnitude of the task that the review of the full text of a Constitution implies, the Comments focus on some, but not all, potential key areas of concern in terms of compliance with international human rights and rule of law standards and OSCE human dimension commitments. Thus limited, the Comments do not constitute a full and comprehensive review of the Draft Constitution nor of the entire legal and institutional framework pertaining to the protection and promotion of human rights in Turkmenistan. 7. The Comments raise key issues and provide indications of areas of concern. In the interest of conciseness, they focus more on areas that require amendments or improvements rather than on the positive aspects of the Draft Constitution. The ensuing recommendations are based on international standards relating to human rights and fundamental freedoms, as well as relevant OSCE commitments. The Comments also highlight, as appropriate, good practices from other OSCE participating States in this 1 OSCE/ODIHR, Opinion on Constitutional Reform Proposals submitted on 22 May 2008 by the Constitutional Commission on Improvement of the Constitution of Turkmenistan, 23 June 2008, available at http://www.legislationline.org/documents/id/15352. 3 OSCE/ODIHR Comments on the Draft Constitution of Turkmenistan field. Moreover, in accordance with the 2004 OSCE Action Plan for the Promotion of Gender Equality and commitments to mainstream a gender perspective into OSCE activities, the Comments analyse the potentially different impact of the Draft Constitution on women and men.2 8. These Comments are based on an unofficial English translation of the Draft Constitution, provided by the OSCE Centre in Ashgabat, which is available at www.legislationline.org. Errors from translation may result. 9. In view of the above, the OSCE/ODIHR would like to make mention that the Comments are without prejudice to any written or oral recommendations and comments
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