Reforming the Judiciary in Morocco Composed of 60 eminent judges and lawyers from all regions of the world, the International Commission of Jurists promotes and protects human rights through the Rule of Law, by using its unique legal expertise to develop and strengthen national and international justice systems. Established in 1952 and active on the five continents, the ICJ aims to ensure the progressive development and effective implementation of international human rights and international humanitarian law; secure the realization of civil, cultural, economic, political and social rights; safeguard the separation of powers; and guarantee the independence of the judiciary and legal profession. ® Reforming the Judiciary in Morocco © Copyright International Commission of Jurists, 2013 The International Commission of Jurists (ICJ) permits free reproduction of extracts from any of its publications provided that due acknowledgment is given and a copy of the publication carrying the extract is sent to its headquarters at the following address: International Commission of Jurists P.O. Box 91 Rue des Bains 33 Geneva Switzerland Cover paintings by Roger Pfund Reforming the Judiciary in Morocco 1 Table of Contents Introduction .............................................................................................. 4 A. The High Judicial Council................................................................. 12 1. International law and standards .............................................. 12 i) Separation of powers .....................................................................12 ii) Composition of judicial councils .....................................................13 iii) Management of the judiciary .........................................................13 iv) Financial resources of the judiciary ...............................................16 2. The current Conseil Supérieur de la Magistrature (CSM) .......... 16 3. The new Conseil Supérieur du Pouvoir Judiciaire (CSPJ) .......... 18 4. Assessment of national law in light of international standards. 20 5. Recommendations.................................................................... 23 B. The Statute for Judges .................................................................... 23 1. International law and standards .............................................. 24 2. The current law on the Statute for Judges................................ 27 i) Selection, training and promotion .................................................27 ii) Tenure and termination of office ...................................................29 iii) Freedom of association and expression.........................................29 3. Assessment of national law in light of international standards. 30 i) Selection, appointment and transfer .............................................31 ii) Assessment, promotion and assignment .......................................31 iii) Tenure and termination of office ...................................................32 iv) Freedom of association and expression.........................................33 4. Recommendations.................................................................... 34 C. Judicial Accountability: the Ethics and Discipline of Judges............. 35 1. International law and standards .............................................. 35 i) Judicial ethics.................................................................................35 ii) Judicial discipline ...........................................................................36 2. Current standards on judicial conduct and discipline................ 37 i) Judicial conduct..............................................................................37 ii) Procedures for judicial discipline....................................................38 3. Assessment of national law in light of international standards. 39 i) The development of code of ethics and a new disciplinary regime40 ii) Criminal and civil liability ...............................................................41 4. Recommendations.................................................................... 41 D. Military Courts................................................................................. 42 1. International law and standards .............................................. 43 i) Subject matter jurisdiction: trial of non-military related offences 43 ii) Personal jurisdiction: trial of civilians and juveniles......................45 iii) Fair trial before an independent and impartial tribunal.................47 2. The current system of military courts....................................... 49 i) Personal and subject matter jurisdiction .......................................49 ii) Composition ...................................................................................50 iii) Selection, appointment and conditions and security of tenure .....50 iv) Prosecutors of the military courts..................................................51 v) Trials before military courts...........................................................52 vi) Appeals and reviews ......................................................................53 3. Assessment of national law in light of international standards. 53 i) Subject matter jurisdiction ............................................................54 ii) Personal jurisdiction: trial of civilians and juveniles......................55 iii) Fair trial before an independent and impartial tribunal.................55 4. Recommendations.................................................................... 57 E. The Office of the Public Prosecutor ................................................. 58 2 1. International law and standards .............................................. 58 2. The current Office of the Public Prosecutor .............................. 63 i) Organization...................................................................................63 ii) Functions........................................................................................64 3. Assessment of national law in light of international standards. 64 i) Appointment, promotion, tenure and disciplinary proceedings .....65 ii) Relationship with the executive .....................................................65 iii) Relationship with the judiciary.......................................................66 iv) Other elements ..............................................................................67 4. Recommendations.................................................................... 67 F. The Constitutional Court ................................................................. 68 1. The Constitutional Council........................................................ 69 i) Competencies of the Council .........................................................69 ii) Composition and appointment of members...................................69 iii) Conditions and security of tenure..................................................70 2. The new Constitutional Court ................................................... 71 3. Assessment of national law in light of international standards. 72 4. Recommendations.................................................................... 73 3 Introduction Overview In this report, the International Commission of Jurists (ICJ) analyses provisions of the 2011 Constitution and the structures and mechanisms it establishes, as well as existing laws and mechanisms that impact on the independence of the judiciary in Morocco, in light of international human rights standards. The report makes a range of specific recommendations that aim to contribute to efforts to ensure that the ongoing process of law and institutional reform enhances the independence of the judiciary and correspondingly increases respect for human rights and the rule of law in the country. The judicial system is central to respect for the rule of law and the protection of human rights. Both individual and institutional independence are necessary. An independent judiciary means that victims can seek redress, that perpetrators of human rights violations are brought to justice, and that anyone suspected of a criminal offence receives a fair trial. Furthermore, by acting as a check and balance on the other branches of government, the courts ensure that the executive and legislative branches comply with international human rights and the rule of law. The International Covenant on Civil and Political Rights (ICCPR), to which Morocco is a party, guarantees the right to a fair and public hearing by a competent, independent and impartial tribunal.1 This right is absolute. It is not subject to any exception. Morocco is obligated to respect and ensure respect of this right as well as to provide for necessary safeguards to secure its realisation.2 Despite constitutional guarantees of judicial independence and separation of powers, Morocco has long fallen short of meeting its obligation to ensure that the courts are independent and not dominated by the executive branch. In its 2004 review of Morocco’s implementation of its obligations under the ICCPR, the Human Rights Committee (the expert treaty monitoring body) concluded that Morocco had failed to guarantee the independence of the judiciary.3 The ICJ considers that judicial independence in Morocco has suffered from control by the executive branch over judicial matters, and that this in turn has eroded public confidence in the justice system and has compromised