EMHRN 2007 Annual Report on Freedom of Association in The

Freedom of Association in the Euro-Mediterranean region

1997-2007 Anniversary 2007 Copenhagen - December 2007 EURO-MEDITERRANEAN HUMAN RIGHTS NETWORK Vestergade 16 - 1456 Copenhagen K - Denmark Tel : + 45 32 64 17 00 - Fax : + 45 32 64 17 01 E-mail : [email protected] Website : www.euromedrights.net

Bibliographic information Title : Freedom of association in the Euro-Mediterranean region - Personal authors : Khémaïs Chammari, Marie Ghantous, Thibaut Guillet, Ghassan Moukheiber - Corporate authors : Euro-Mediterranean Human Rights Network (EMHRN) - Publisher : Euro-Mediterranean Human Rights Network (EMHRN) - Date of publication : December 2007 - pages: 112 - ISBN : 87-91224-17-9 - Original language : french - Translation into Arabic : Aiman Haddad - Translation into French : Pia Drzewinski - Translation into English : Marc Forand, Michel Forand - Proofreading, editing and lay-out : Thibaut Guillet, with the collaboration of Aurélie Grenet, Nour Hemici, Fabrice Liebaut, Karl Karim Zakhoura and Marc Schade-Poulsen - Graphic creation : Studio Créamine, St Pryvé St Mesmin, France - Printing : Total Design, Bruxelles, Belgique - Index terms : Freedom of association / Human Rights - Geographical terms : Mediterranean Countries / North Africa / Middle East

The Report is published with the generous fi nancial support of the European Union Commission, DANIDA (Danish International Development Agency) and the Danish Institute for Human Rights.The opinions expressed by the authors do not represent the offi cial point of views of fi nancial donors. TABLE OF CONTENTS

INTRODUCTION ...... 5

OVERVIEW ...... 11

COUNTRIES REPORTS

Freedom of association and Recommendations In Algeria ...... 21 In Egypt ...... 28 In Israel ...... 35 In Jordan ...... 43 In Lebanon ...... 50 In Libya ...... 57 In Morocco ...... 62 In Syria ...... 68 In the Palestinian territories ...... 76 In Tunisia ...... 83 In Turkey ...... 90 In the European Union member states ...... 97

Appendix ...... 109

General introduction

by Khémaïs CHAMMARI 1

‘Man can do good or evil only by associating with others. No armour is more secure against oppression, no tool is more splendid for great achievements’ Pierre WALDECK-ROUSSEAU, promoter of the 1901 French legislation on associations

Preamble

This initial report of the Euro-Mediterranean Human Rights Network (EMHRN) on freedom of association is the culmination of a process launched in September 2006. At its last general assembly, the Network decided to establish thematic working groups linking its various components. The working group on freedom of association was created as part of that process, with the overall goal of contributing to the promotion of ‘human rights values and international standards related to freedom of association in the Euro-Med region, in particular in the South Mediterranean area’.

From its inception in 1997, the EMHRN has taken a great interest in the issue of freedom of association. It noted with satisfaction the Declaration on the Right and Responsibility of Individuals, Groups and Organs of Society to Promote and Protect Universally Recognized Human Rights and Fundamental Freedoms (known as the ‘Declaration on Human Rights Defenders’), adopted by the United Nations General Assembly on 9 December 1998. Based on the Barcelona Declaration, which was adopted on 28 November 1995 and launched the Euro-Mediterranean Partnership process guaranteeing ‘the effective legitimate exercise of such rights and freedoms, including freedom of expression, freedom of association for peaceful purposes’, the Network then organised, in cooperation with the Association pour la défense des droits et des libertés au Liban and the Friedrich Naumann Foundation through the Bunian programme on good governance, a workshop on the ‘Legal Framework of Associations in the Arab World’, held in Amman on 9-10 May 1999.

Following the adoption on 10 May 1999 of the Declaration of Principles and Criteria Relating to the Freedom of Association in the Arab Countries (the ‘Amman Declaration’), cooperation between the EMHRN and the Arab Initiative for Freedom of Association (AIFA) expanded. On 5-7 October 2000, the EMHRN, in partnership with AIFA, organized a seminar on ‘Freedom of Association in the Euro-Mediterranean Region’ with three Moroccan groups (Espace associatif du Maroc, Association démocratique des femmes du Maroc and Organisation marocaine des droits de l’Homme); the event concluded with the adoption of the ‘Casablanca Declaration’.

With the assistance of the Danish International Development Agency (DANIDA), the EMHRN then undertook a study on needs and expectations in the area of support for human rights defenders. The resulting feasibility study was approved by the organisation’s 2004 general assembly, which authorised the establishment of the Euro-Mediterranean Human Rights Foundation to Support Human Rights Defenders. And ﬁ nally, as part of the last Euromed Civil Forum, held in Marrakech, Morocco, on 5-7 November 2006, the EMHRN co-chaired a workshop on freedom of association, with the Fondation René Seydoux pour le monde méditerranéen focusing on the cultural component.

The current project is the outcome of this series of initiatives, which demonstrates the Network’s strong interest in the critical area of freedom of association for the past 10 years. The goal of the project is to foster improvements in the expertise of organisations in matters of freedom of association and to help them acquire follow-up and proposal-drafting capacities so that they may promote, where necessary, substantial legislative changes and a framework of rules applicable to the practices of the regulatory authorities. The strengthening of civil society and its components is an important factor contributing to the process of democratic reform.

1 Former secretary-general and vice-president of LTDH (Ligue tunisienne des droits de l’Homme) and FIDH (Fédération Internationale des droits de l’Homme), former deputy, Board member of the Euro-Mediterranean Human Rights Foundation (EMHRF).

5 GENERAL INTRODUCTION 6 4 3 2 http://www.whrnet.org/docs/issue-association.html. de Vries. Yamna Ghabbar, Anouar Kousri, Anne-Laurence Lacroix, Abdeljalil Laroussi, BirgitLindsnæs, OmarMestiri, GhassanMoukheiber, Ev depends onthefullenjoymentofeconomic,socialandculturalrights. for thepromotion andprotection ofeconomic,socialandculturalrights.Conversely, thefullexercise ofcivilandpolitical The righttojoinandestablishassociationsiscloselylinkedthe others civilandpoliticalrights,whichare fundamental freedom ofassociation At thesametime,itrequires thatthestatecontributetodevelopingandmaintaininganenvironment favourabletotheexercise form oforganisation.Itrequires thatthestaterefrain from interferingwhenanassociationiscreated andcarriesoutitsac The righttofreedom ofassociation includestherighttojoin,create andleaveanygroup, associationorsociety, whateverit many respects, abarometer ofthestatebasicfreedoms. plays adeterminingrole inanydemocraticreform project. There canbenodemocracywithoutfreedom ofassociation,whichis, CovenantonCivilandPoliticalRights,isinseparablefrom freedomInternational ofopinion,expression andofinformation, Freedom ofassociation,whichisenshrinedinarticle20theUniversalDeclarationHuman Rightsandinarticle22ofthe THE RIGHTTOFREEDOMOFASSOCIATION, ABAROMETEROFTHESTATE OFBASICFREEDOMS A steeringcommittee breakthroughs andsetbacksexperiencedwithrespect tofreedom ofassociationfrom yeartoandfrom countrytocountry. members andpartners,theEMHRNneedstodevelopamethodologyenablingitdefi ne asetofbenchmarksaimedatmeasuring In additiontopreparing regular reports onfreedomwithinvolvementbyits ofassociationineachthecountriesconcerned, At itsfi rst fullmeeting,heldon3-4March 2007inCopenhagen,Denmark,theworkinggroup, whosemembers or politicalpartiesinthisreport. been combined).Basedonarecommendation bythesteeringcommittee,workinggroup decidednottoincludetrade unions their fundingandtaxationregime, andfi nally oncontrol,andtransparency governance (insomecases, thelasttwosectionsha the establishmentandregistration ofassociations,ontheirdissolutionandsuspension,organisationoperation,o report includesanintroduction onthegeneralpoliticalcontextandlegislationinplace,followedbyfourorfi ve sect and thepracticesimplementedbyauthoritiesorganisationsthemselves.Broadly speaking,thestructure ofeach of countryreports focusingonthelegalandpoliticaldimensionsoffreedom ofassociationaswellontherules,regula (NGOs). Thecommitteewasaskedtoprepare, incooperationwiththemostactiveindependentNGOscivilsociety, anumber of associationevolvesintheregion. editions. Regularupdatesare envisaged,everyyearifpossible,soastoimprove andaugmentthereport asthesituationoffr fi rst report focusesonlyonhumanrightsNGOs.Thescopeoftheorganisationscovered could, however, bebroadened infuture with atoolthatcanbeusedintheiractionsthearea offreedom ofassociation.Forreasons ofpracticabilityandfeasibil Mediterranean region. Theapproach adoptedhere isessentiallydescriptiveandseekstoprovide organisationsactiveinthefi e This initialstudypresents acomprehensive review ofthelegislationandpracticespertainingtofreedom ofassociationinthe both forthereforms tobepromoted andfortheworkinggroup’s future activities. continuous actionsatthelocallevel.Thesewillcentre onindicatorsthatwillbeselected andwillhelptoidentify They willbediscussedattheworkinggroup’s secondmeetinginDecember2007,andcouldthusleadtothedevelopmentof of theinitialdocuments.Draftrecommendations were developedonthebasisofthisworkandconsultationsthatwere hel The twoconsultantsandtheEMHRNsecretariat were then chargedwithsummarisingthereports whilemaintainingthestructure of consultationwiththeNetwork’s membersandpartners. in theEuropean Unionwasalsoprepared. Thesereports, whichare available ontheEMHRN’s website,were writtenafteraround Mediterranean.Abackground andeastern report ontheexerciseadopted for11countriesofthesouthern offreedom ofassociati Chammari (Tunisia) -selected20to25questionsthatwere usedtostructure thecountryreports, withthesamestructure being countries intheMediterraneanregion, andthetwoconsultantschosenbyEMHRN-MarieGhantous(Lebanon)Khémaïs For an overview ofdevelopmentsrelated tothistopicandaninternationalperspective, Foranoverview seeCarolinaRodriguezBello, ‘Freedom The working groupincludedthefollowingmembers: Ali Amar, HalilBayhan, RedouaneBoudjema, LisDhundale, PanayoteDimitras, The steering committee’s memberswereIainByrne, Abdeljalil Laroussi, BirgitLindsnæs, GhassanMoukheiberandJan de Vries. 2 wasestablishedtostarttheproject andfi nd resource organisations personsamongnon-governmental 4 . of Association -October2003’, WHRnet a Norström, Jan Ter LaakandJan Maria Fahmy, MoatazElFegiry, 3 hailfrom various prerequisites priorities ions on eedom tivities. ity, the s legal andit Euro- rights tions of on ve d. ld in n

Amman DeclarationwasfollowedbytheCasablanca promoting citizeninterest inpublicissues...andenhancing democracy, democraticculture andstrengthening civilsociety’.T of ameetinglegalexperts,emphasisestheimportancefreedom ofassociationto‘achieving sustainablehumandevelopment, Finally, theDeclarationofPrinciplesandCriteriaRelatingtoFreedom ofAssociationintheArabCountries,adoptedatth - - - Regional humanrightsinstrumentsspecifi c totheEuro-Mediterranean region alsoprotect freedom ofassociation: without interference orpriorauthorisationbythestate. Organise Convention(C87),whichprotects therightsofworkersandemployeestojoinor establish organisationsandtooperate Organization (ILO)alsoprotect freedom ofassociation, inparticulartheFreedom ofAssociationandProtection oftheRightto Labour organisationsandassociations.TheconventionsoftheInternational have therighttoparticipateinnon-governmental Article 7oftheConventiononEliminationAllFormsDiscriminationagainstWomen (CEDAW)stipulatesthatwomen organizations’. orintergovernmental organizations,associationsorgroups;(c)tocommunicatewithnon-governmental in non-governmental Article 5oftheDeclarationreaffi rms thateveryonehastheright‘( rests withtheState. Declaration alsostresses thattheprimeresponsibility anddutytopromote andprotect humanrightsandfundamental freedoms of citizenstofreely formassociations,inparticularfortheprotection andpromotion offundamentalrightsandfreedoms. The Recognized HumanRightsandFundamentalFreedoms, adoptedbytheUnitedNationsGeneralAssembly, reaffi rms theright The DeclarationontheRightandResponsibilityofIndividuals,Groups andOrgansofSocietytoPromote andProtect Universally and freedoms ofothers’. which are necessaryinademocraticsocietytheinterests ofnationalsecurityorpublicorder orfortheprotection ofthe economic andsocialinterests. Norestrictions maybeplacedontheexercise ofthisrightotherthanthoseprescribed bylawa forthepromotionjoin thetradeunionofhischoice,subjectonlytorulesorganizationconcerned, andprotection o Rights provides that‘theStatesPartiestothepresent Covenantundertaketoensure therightofeveryonetoformtradeunions join tradeunionsfortheprotection ofhisinterests’.CovenantonEconomic,Socialand Article8(1)(a)oftheInternational Political Rightsrecognises that‘everyoneshallhavetherighttofreedom ofassociationwithothers,includingtherighttof the righttoformandjointradeunionsforprotection ofhisinterests’.Covenanto Article22(1)oftheInternational provides that‘everyonehastherighttofreedom ofpeacefulassemblyandassociation’whilearticle23(4)statesthat‘everyo The righttofreedom ofassociationisguaranteedandprotected bytheUniversalDeclarationofHumanRights.Article20(1) that isconducivetotheparticipationofwomeninlifeassociationsandeliminateallformsdiscriminationagains cultural standardstherefore andsocialvalueswithintheirowncommunities.Governments haveadutytoprovide anenvironment undermined bylackofaccesstoandcontrol ofeconomicandpoliticalresources. In addition,theyare penalisedbyavarietyo as organisersandmotivators.However, thefreedom andabilityofwomentoenjoytherightformjoinassociationare oft At thesametime,freedom ofassociationandtherightsrelated thereto are ofcrucialimportancetowomen,whoplaykeyroles 6 surveillance andunderthethreatofadministrativedissolution surveillance association isboth‘anauthorisedfreedom coupledwithalimitedlegalcapacity’and‘ instruments, themostimportantofwhichare legallybindingforthemajorityofcountriesinregion. However, freedom Mediterraneanwillrefer andeastern toallofthes The review southern ofthestatefreedom ofassociationinthenorthern, October 2000.. 5 SeeMohamedMouaqit ‘ Freedom of Association intheEuro-MediterraneanRegion, CasablancaDeclaration, October2000, The AfricanCharteronHumanandPeoples’Rights(article10). The European UnionGuidelinesonHumanRightsDefenders; The European ConventionfortheProtection ofHumanRights andFundamentalFreedoms anditsadditionalprotocols (article11); La libertéd’association dansledroitassociatifdelarégionméditerranéenne ’. 6 5 a) tomeetorassemblepeacefully;(b)form,joinandparticipate inOctober2001. apublicationoftheEMHRN, AMDF, OMDH andEspaceassociatif. ’, regional conferenceco-sponsoredbytheEMHRN, Casablanca, 5-7 a freedomgenerallyunderinterference, n Civiland orm and t them. Cultural ne has e end rights and f his nd he en of e f

GENERAL INTRODUCTION GENERAL INTRODUCTION 8 Éditions laDécouverte.. of obedience’ partygivesrisetoanall-pervasivestateofarbitrarinessfacedbypeoplewhoareall-powerful government subjectedtothe‘s if notnon-existentinTunisia andLibya.InEgyptSyria,thedominationexertedbysingle-partystateorhegemonic - - - elements: While thislistofchallengesandobstaclestotheexercise offreedom ofassociationisnotexhaustive,itdoeshighlightthe from holdinggeneralassembliesormeetings. police andjudicialharassment,rangingfrom surveillancetothedestructionoftheirheadquarters andtomeasures prohibiting and toarbitraryadministrativepractices.Legallyconstitutedindependentassociationsare oftensubjectedtovariousmethods be seektoprevent thecreation ofindependentorganisations byresorting tolegislativemeansthatare inmostcasesunconstit Against thatbackground, freedom ofassociationisfl Mediterranean, where outed inmostcountriesofthesouthern powers-th migratory infl ows fromMediterraneancountriesandAfrica. thesouthern the pretext ofthestruggleagainstterrorist threats, legitimatethoughthatstruggle maybe,andofanobsessivedesire toco that country. Finally, thedemocraciesonnorthsideofMediterraneanare alsoaffected byfreedom-curtailing deviation army andtherejection ofKurdish aspirationsare signifi cant riskfactorsandposeaveryreal threat totheenjoymentoffree therefore different from theconditionsthatprevailpartofMediterraneanregion. However, inthesouthern theinfl uence o In anticipationofafurtherenlargementtheEuropean Union,Turkey musttakeEUexpectationsintoaccountanditssituation are forced toadjustdangerous situationsofquasi-clandestinenessanddissidence. of theirrighttofreedom ofmovement.Thenumberassociationsthatare arbitrarilydeniedrecognition continuestogrow, an insecurity. Thisresults in,amongotherthings,violationsoftheirfundamentalrights(inprivate,professional andpub defenders throughout theregion are confronted withavarietyofformsrepression andare exposedtophysicalharmandongoi Given thisenvironment, independentcivilsocietyactors,NGOactivists,tradeunionists,lawyers, judges,feministsandhuman used tojustifyrepressive measures andemergencylaws. 8 7 effective threat bystatescreates asituationthatraisesgraveconcerns While theconsequencesandrepercussions ofJihaditerrorism are undoubtedlysignifi cant, thesystematicuseofthismore ofle the unanimousfi humanrightsorganisationsandinstitutions. ndings ofthemajorinternational are factorsofinsecurityforallthepeoplesinregion. Whilethispicture mayseemexcessivelybleak,itis,infact,ar Palestinian Territories, aswelltherepercussions ofthewaroccupationinIraqandincrease interrorist attacks- hardening ofIsrael’s repressive policyandthedeteriorationofsituationinGazaand,toalesserextent,rest of 2006 andSyrianinterference), thesegainsare relative andinmanyrespects uncertain.Theworseningconfl ictintheMiddleEa some progress hasbeenmade,especiallyinMorocco andLebanon(despitetheIsraelimilitaryaggression during thesummerof with multipletypesofharassment,intimidation,abductionsandviolencetowards alldemonstrationsofprotest ordissidence.W association, ofassemblyandexpression evenmore. Humanrightsviolationsanddenialsofjusticeare commonpracticealong September 2001attacks,moststatesintheregion havebeenimplementingrepressive strategiesaimedatrestricting freedom of Mediterranean countrieswithrespect totheeffective enjoymentofbasicfreedoms remains Sincethe asource ofgraveconcern. Despite repeated offi cial speechesaboutthesafeguarding ofhumanrightsandtherulelaw, andea thesituationinsouthern OF ASSOCIATION CURRENT SITUATION: FLAGRANTHUMANRIGHTSVIOLATIONS ANDOBSTACLES OFALLKINDSTOFREEDOM of Jurists(ICJ), heldinRabat, Morocco, inJuly2006. An expressionborrowedfrom thetitleofabookbyFrenchacademic BéatriceHibou, See, inparticular, theconclusionsof ‘sub-regional hearing’onterrorism andhumanrightsorganisedbytheEminentJuris The comminglingoftheexecutive andjudicialpowersthesubservienceofjudiciarymake itpossible,through repression Jordan, forexample,are likelytobetheoppositeofthosethatwere anticipated. extremism andfanaticism.The effects oflawspurportingtofi ght terrorism andmoneylaunderingincountries suchasTunisia a While theriskofterrorism isreal, policiesthatfocusexclusivelyonsecurityandpracticescurtailfreedoms donothel state ofemergencyorlawsare allowedtocontinueindefi nitely. The impossibilityofpromoting anopeningandreform of the situationwithregard tofreedom ofassociationinacontextwhere 8 . InAlgeria,EgyptandSyria,astateofemergencyisstillinforce (since1992,1981and1963,respectively) andis 7 . Theenjoymentofindividualfreedoms isextremely limited La forcedel’obéissance: économie politiquedelarépressionen Tunisie, Paris, ts PaneloftheInternationalCommission the Occupied eflof ection lic life)and p tostop following all these doms in s under trength utional st, the d they rights them stern stern f the and ntrol hile at- nd ng is ss of a

9 ------CTUWS, anorganisationthatadvocates fortradeunionism the authorities,especiallysincejudiciaryoftenapproves interventionsbythebureaucratic andpoliticalauthorities. establish commercial structures tocarryouttheiractivities.However, thisdoesnotnecessarilyshelterthemagainstinterfer In anattempttocircumvent thediffi culties andobstructionforced uponorganisations,activistsmust,whenlegislation allows this typeandensuringtheirautonomy andtheirfuture involvement incoordinated actions withothertypesoforganisations. The challengesfacingcivilsociety inthosecountriesincludeimproving andstreamlining management methodsinassociationsof authorities fortheirownpurposes. to traditionalcustomsandcollusionamongnotables,theyrisk beingusedbygovernment their largenumber. Whilethesegroups are partofcivilsociety, themajorityofthemfallintotraditional,clanorfamilyty In somecountries(Jordan, for example),thequestionofcharityorganisationsisinterest toassociationsingeneralbecaus fora. of civilsocietyininternational control overthepopulation. Inaddition,theyare instruments inthedevelopmentofapolicypropaganda and‘representation organisations’(GONGOs) haveattheirdisposalsignifigovernmental cant resources formobilisingandexertingpoliticalsoc the expenseofNGOs,whichfacerestrictions, non-recognition non- andexclusion.Theseso-called‘government-operated In autocraticandtotalitarianstates,theincrease instrictlypro-governmentalassociationsandorganisationstakesplaceat states intheregion towards thisevolutionare tellingsignsoftheiraversiontowards andfearofindependentNGO initiatives element intheevolutionofeffective enjoymentoffreedom ofassociation.Thehostilityandevenoppositiondisplayedbym The possibilityforassociationstobringlegalproceedings andtofi le acivilsuitonbehalfofaggrievedthird partiesisan outcome ofsuchrequests isalwaysuncertain. Criminal Court,forexample).Theformationofsuchcoalitionsrequires thatanapplicationforpriorapproval besubmitted;th between legallyrecognised organisations(againstcapitalpunishmentorfortheratifi cation oftheRomeStatuteInterna authorities, whichimposetheobligationtoobtainpriorapproval. Inthosecountries,itistherefore impossibletoestablish of innovativecivicbehaviours.Insomecountries-Tunisia, EgyptandSyria,forexample-thisapproach hasbeenrejected by for organisationstodiversifytheirfi eld ofactivity, toriseabovepoliticalorideologicaldifferences andencouragethede of coordinating bodies,coalitionsandnetworksbetweenentitiesworkingoncommonissues. Thisapproach makesitpossible Beyond alooseningofthelegislationonrighttoformassociations,strengthening of civil societyimpliesthedevelop (CTUWS) inEgyptthatitisinterferingillegallythearea oftradeunionaction different vein,butsimilarinitsrestrictive purpose,istheallegationmadeagainstCentre forTrade UnionandWorkers’ are nature’. compoundedbyspuriousandseriouschargesof‘involvementinanillegalorganisation ofaninternational Ina far from beingdefi ned clearlyintheselegislations.InSyria,forexample,abusiveinterpretations ofthenotion‘politica by associationsandontheestablishmentofpoliticalorganisationsisallgreater because theconceptof‘politicalactivi parties inorder toimpedetheevolutiontowards agenuinely pluralisticsociety. Thethreat posedbythebanonpoliticalacti A numberofcountriesintheregion deliberatelymaintainconfusionbetweenthelegislationsonassociationsandpolitical inparticular). audiovisual mediaandcommunications(through theinternet, Throughout theregion, obstaclestotheenjoymentoffreedom ofassociationare accompaniedbyclampdowns onthepress, positions andclosetheiroffi ces, tolegalproceedings instigatedthrough militantsupportersofthesingle-partystate. forms, rangingfrom themore orlessdiscreet presence ofsecurityagentstoashowforce toremove NGOleadersfrom their Direct interference intothemanagementandregulation ofassociationsbytheauthoritiesisacommonoccurrence. Ittakesvari purpose, andjudicial,civiloradministrativeappealprocedures are oftendeliberatelyslow. intended todiscouragetheapplicants.Pressures, includingphysicalcoercion, are insomecasesbrought tobearforthesame norm intherest oftheregion’s countries,where registration applicationsmeetwithlengthyanddiffi cult bureaucratic proced rendered.) Whilelegislativereforms inMorocco andLebanonrepresent apositivedevelopment,harshlawsandpracticesare the proceedings inoppositiontoanorganisation’s registration, withnoimmediateeffect onitsactivitiesuntilafi nal judgment the ‘prioragreement’ systeminfavourofa‘declarativesystem’.(Ifcircumstances warrantedit,theauthoritiescouldlaunch to theexercise oftherightassociation.Anyliberalanddemocraticreform inthatarea willtherefore require theeliminat systematically limittheenjoymentoffreedoms –acombinationthatisfoundinmostcountriesoftheregion –result inabarr The deliberateambiguityoftheso-called‘dualist’regime ofconstitutionalguarantees,coupledwithlegislativechangesthat peace andthecredibility oftheverynotionrulelaw. prospect forpeacefulandprogressive change,thisinstitutionalautismfostersthemost egregious aberrations,subverting soci and fear, tosilenceandquashanyprotest ordemonstrationofdissidenceonthepartassociations.Bysuppressing any and workers’rights, wascloseddownfollowinganadministrative deci 9 . sion madeon29March 2007 pes. Thanks velopment important coalitions l activity’ Services ence by . ion of tional ment vities ty’ is legal ures was e of ous the ost it, ier ial al e ’

GENERAL INTRODUCTION GENERAL INTRODUCTION 10 Commissioner forHumanRights,isaresponsibility thateachandeveryoneofusmustshare. that thisdiscussionwillprompt readers toexercise renewed vigilance,which,asnotedbyLouiseArbour, theUnitedNationsHi halfoftheEuro-Mediterranean region.southern Theauthors,aswelltheassociationsandindividualstheyconsulted,hope of freedom ofassociationandatcontributingtothedevelopmentatoolformonitoring thestateofbasicfreedoms inthe Given thesecircumstances, ourexaminationisaimedatupdatingtheanalysisoflegislationsandpracticesrelated tothe enjoy - - - - Union GuidelinesonHumanRightsDefenders,adopted15June2004. - butnottheobservanceofUNDeclarationHumanRightsDefenders,adoptedon9December1998,andEuropean conventions) andnon-treaty mechanisms(workinggroups andspecialrapporteurs).Finally, onemustnote theacknowledgment Nations HumanRightsCommitteeandoftheUN’s treaty mechanisms(periodicfollow-upreports onhumanrightstreaties and Union andtheEuro-Mediterranean Partnership(article2oftheassociationagreements), andtothejurisprudenceofUnited rights are amongtheprioritiesofNGOmovement.Thesamealsoappliestocommitments madeinthecontextofAfrican of thesedocuments.Actionspromotingcommitmentswithregard theimplementationofstates’international tolocal positive humanrightsandhumanitariantreatiesinternational andconventionsessentiallyvoidthemeaningofsomeprovisions andregionalwhich thusdisavowtheirinternational obligations.Inaddition,thereservations accompanyingtheratifi cation of it isproclaimed withmuchfanfare, respect forindividualandcollectiverightsisroutinely fl outed bymoststatesinthereg standardsInternational haveanimportantrole toplayinmonitoringthesituationoffreedom ofassociationintheregion. Alt outside sources (thebillwaseventuallyrejected bytheKnesset on3March 2005). that theIsraeliauthoritiestabledabillwouldhaveimposedsevere restrictions onorganisationsseekingtosecure fundi taken todissolveNGOsandthecriminalproceedings brought againstNGOleadersandactivistsmustbecondemned.Notealso Neighbourhood Policy).InEgypt,SyriaandTunisia, inparticular, theblockingoffunds,administrativeandjudicialmeasu association. ThisappliesparticularlytotheEuro-Mediterranean Partnership(associationagreements andactionplansunderthe from cooperationagenciesmusthonourtheircommitmentswithrespect tofreedom multilateralandbilateralinternational of and usesofthemoniesreceived are completelytransparent. Italsoimpliesthatthosestateswhichreceive fi nancial resources subsidies mustbeinplaceandthatassociationsfree toraisefundsandreceive privatedonationsaslongthesourc is anintegralpartofthestruggleforeffective exercise offreedom ofassociation.Thisimpliesthatimpartialpolicieso The issueoftheaccessorganisationstofunding,whetherfrom publicorprivatesources, orfrom domesticorforeign source against corruption,aswellenvironmental issuesthatcannotbeaddressed solelybystateinterventions. in thestruggleforindependenceofjudiciary, thepromotion oftheinterests ofvulnerablesegmentssocietyandthe of theambiguoustreatment thesesubjectsreceive. Thesameistrueoftheactionslawyersandjudgeswhoare importantacto majority ofcountriesintheregion andthedeliberateomissionsinAlgerianamnestyfor‘peacereconciliation’ are evi and-justice processes. Whileprogress inthisarea hasbeenmaderecently inMorocco, the‘pactsofforgetfulness’ineffect in to freedom ofassociationinvolvethesituationpoliticalprisoners,condemnationstorture, thefi ght againstimpunityan the possibilityofjoiningwithothersinpeacefulassociationsandexpressing one’s opinionfreely. Othersensitivesubjectsr Respect forandtheimplementationofcivil,political,economic,socialculturalrightsare seriouslyjeopardised whenone media campaigns. citizenship mustoftendealwithpracticesthathavearestraining effect onfreedom of associationandwithhostileintole aggressive stanceofconservativesectorssociety. Advocacyinterventionsinfavourofeffective genderequalityandgenuine and tofeministinitiatives.Theseinitiativesare oftenconfronted withtheextremeauthoritiesand caution ofgovernment The effective enjoymentoftherighttofreedom ofassociationiscruciallylinkedtothemovementinfavourgenderequality ng from d truth- f public hough dence elated lacks ment fi ght rant the the ion, res res gh es rs s,

Overview

by Ghassan MOUKHEIBER 1

“There are no countries in which associations are more needed to prevent the despotism of faction or the arbitrary power of a prince than those which are democratically constituted. In aristocratic nations the body of the nobles and the wealthy are in themselves natural associations which check the abuses of power. In countries where such associations do not exist, if private individuals cannot create an artiﬁ cial and temporary substitute for them I can see no permanent protection against the most galling tyranny; and a great people may be oppressed with impunity by a small faction or by a single individual.”

Alexis DE TOCQUEVILLE

It may be helpful to stress the fundamental role that associations 2 play in the construction of civil society, given that they fulﬁ l the following roles and functions in succession: - Organised counterweight in the face of state bodies - Form of democratic participation and instrument for training citizens for civic participation - Instrument of social and economic development - Tool for the protection and promotion of collective and public rights

Despite the important role played by associations, but undoubtedly also because of their fundamental position in the democratic construction, freedom of association has been seen with mistrust and even hostility by political regimes. In addition, in many countries of the world, the law of associations is a branch of the legal corpus that has attracted little attention on the part of lawyers and legal experts. Associations of individuals, essentially characterised by the fact that they do not seek to share proﬁ ts, are, in this context, much less known than the related institution, namely the corporation. It can be seen from the foregoing that while freedom of association is a fundamental freedom, it is a right that is among the least well known in international law 3.

Association legislation is used in Mediterranean states as an instrument for controlling civil societies. The true motivations behind this control, seldom spelled out in the eastern Mediterranean, are even more concealed on its southern shore because they are essentially linked to the fear of democratic development and to a form sort of competition in the context of public and social actions that is ill perceived and recognised by many governments. Thus association law is a true reﬂ ection of the extent of government control and one of the most relevant indicators of the democratic development of a society or a state.

This overview of association law will review the situation in European countries and in the 11 countries of the eastern and southern Mediterranean (Algeria, Egypt, Israel, Jordan, Lebanon, Libya, Morocco, Palestinian Territories, Syria, Tunisia and Turkey).

1 Deputy in the Lebanese Parliament, rapporteur of the parliamentary commission on human rights, lawyer, lecturer at the Law Faculty of Université Saint-Joseph, coordinator of the Arab Initiative for Freedom of Association. 2 As used in this report, the word ‘association’ pertains to the institution known as such in the tradition of French civil law, which has has a profound infl uence on most legal systems in Mediterranean countries. It refers to any ‘body comprised of a number of individuals who, on an ongoing basis, share their knowledge or their activities for a purpose other than sharing profi ts’, whatever purpose or goals the association is pursuing, the purpose serves to characterise the specifi c type of association. The country reports published in this report do not cover political parties or trade unions. 3 This led the Lawyers’ Committee for Human Rights to refer to freedom of association as the ‘neglected freedom’.

11 OVERVIEW 12 any assessment,from botha legalandapoliticalpointofview, isan canonlybeequitableifeachofthe countriesconcerned different countriesoftheEuro-Mediterranean region, ofwhichitisvirtuallyarefl ection. Itwouldbeinappropriate togener In order toconductavalid examination ofassociationlaw, thediscussionmusttakeplaceinsocio-politicalcontextofth 3. Current trends andsocio-politicalenvironment ofthelawassociations inEuro-Mediterranean countries of association,wasforalongtimeusedtolegitimiselegalrepression againstcivilsocieties. the Unionof1958),Jordan andthePalestinianTerritories. Theinfl uence ofEgyptianlaw, aparadigmofextreme violationoff Beginning in1952,Egyptianlawbecamethereference for severalArabcountriesoftheMiddleEast,includingSyria(especially The infl uence ofEgyptianlawondifferent Arablaws the generallawofassociations,withsomechangesbeingbrought in1928and1932. many Arabcountries,particularlyintheMaghreb (Morocco, Algeria,Tunisia). OnlyLebanonretained theOttomanlawof1909as Even afternewlawswere drafted,theinfl uence oftheFrench legaltraditioncontinued-albeitinmuchwatered-down form -in the Ottomanlegalsystem. urging oftheglobalandEuropean great powersintheearly 20thcentury, introduced anadaptationofFrance’s Lawof1901into Throughout theOttomanEmpire, whichencompassedmostoftheArabcountriestoday, the The infl uence ofFrench lawonthedraftingofassociationlaws 4 of associationwhileusingmore orlessrestrictive approaches The constitutionsofthemajoritycountriesaround theMediterranean(Israelbeinganexception)explicitlyproclaim freedom 1. Freedom ofassociationisaconstitutionalprincipleinmostcountriestheEuro-Mediterranean region countries inquestion,andthen(ii)identifythesources ofthelegislation,(iii)byplacingitintheirlegalandsocio-poli Before assessingthedifferent legislations,wewill:(i)describethescopeoffreedom ofassociationintheconstitutional la organisation’ inSyria. political principlesthat areentrenchedasconstitutionalvalues, suchas ‘the socialsystem’inEgypt or ‘the edifi cation of (art. 48)and ‘citizens’ organisations’(art. 49). Some constitutionssubordinatetheexerciseofrightassociationtot to specifi c associations, suchasthe BaathParty(art. 8), citizens’organisationsandcooperative associations(art. 9), ‘tra not mentionfreedomofassociationbutrefers tofreedomofpeacefulassemblyandexpression. At thesametime-andrather sur Other constitutions(Egypt, JordanandPalestine, forexample)referdirectlytothemorereductiveexpression ‘freedom toform associations’, whichisamorereductiveinterpretation-in Arabic, includes allindividualandcollectiverights. However, the Arabic rendition ofallthesearticleserroneouslytranslated ‘f is similartotheFrench institutionofthe Mediterranean, andsouthern In theeastern 2. Legalsystemsthatinspired Arabassociationlaws repeal ofthelaw(fordefectform). it necessarytosubmitthelegislativeproposal totheCouncilofStatebefore forwarding ittoParliament.Thisprocedure led law,of associationininternational characterisedthelawonassociationasatextthatcomplementedConstitution,whichm 1999. TheSupreme ConstitutionalCourt,afteralengthydiscussionontheimportanceofassociationsandplacefreedom constitutional principleoffreedom ofassociationinrepealing LawNo.153onassociation,adoptedbytheEgyptianParliament Similarly, Egypt’s Supreme ConstitutionalCourt,inanimportantdecisionmadeon1stJuly2000,referred inan submitted toitsreview didnotcomplywiththeConstitution. which beganbystatingthatfreedom ofassociationwasaprincipleconstitutionalvalueandthendeclared thatlegislativep constitutionality exists.AprimeexampleistheFrench ConstitutionalCouncil’s decisionof16July1971onfreedom ofassocia The recognition oftheconstitutionalvalueabasicfreedom presents apracticalinterest incountrieswhere judicialreview specifi c restrictions onassociations,veryofteninviolationofbasicfreedoms. freedom ofassociationtothelimitsprovided forin the law. Thisprovision -alegalsinkholeisusedbypoliticalregimes Someofthemoreliberaldocuments(inLebanon, Tunisia, Algeria andMorocco, forexample)referexplicitlytothegenericter ‘fondation’ sharia , orMuslimlaw, isthesource of association lawonlyinthecaseof ortheEnglishinstitutionof [][] ] [ 4 . TheconstitutionsofallArabstatessubordinate theexercise of ‘charitable trust’ . . reedom ofassociation’as ‘freedom toestablish de union, socialandprofessional’organisations socialist Arab societyandtheprotection ofits he respectofcertainmoreorlessprecise associations’. The Syrianconstitutiondoes Tanzimat prisingly -itdevotesseveralarticles m freedomofassociation, which , lawsadoptedatthe obiter dictum tical context. Waqf to impose alise, and rovisions w ofthe reedom , which tothe alysed to the after tion, ade of in e

Mediterranean, andvariesconsiderablyfrom onecountrytoanother of independencethejudiciary. Thesituationinthatregard andeastern isnotalwaysidealinthecountriesofsouthern the faceofadministrativeandevenlegislativeencroachments. Theeffectiveness ofthatrole, however, dependsonthedegree The judiciaryhasplayedavitalrole indefi ning associationlawandfreedom ofassociation,aswellprotecting thisfreedo In thejudicialarea: - - - Association lawisundergoingtransformationinseveralcountries. In thelegislativearea : the legislativeandjudicialarea, andmore attentionis beingpaidtocivilsociety. However, severalcountriesintheregion are experiencingaperiodofdemocratictransition:improvements are takingplaceinb - - considerations specifi c totheregion mustbementioned: democratic counterforce thatiscapableofcriticisingthemorchallengingtheirlegitimacy. Inadditiontothesegeneralconce Against thisbackground, itisalmosteasytounderstandwhypoliticalregimes fearthedevelopment,through associations,ofa association, eveninviolationofthelaw. (parliaments andthejudiciary),whichgivesexecutive,aswellsecurityconsiderations,free rein torestrict freedom o To this socio-politicalpicture mustbeaddedtheweaknessofrulelawandinstitutionaldemocraticcounterweight disintegration accompaniedbyariseintherateofilliteracy’ laws, theforemost ofwhichare emergencylaws.Thisiscompoundedbythewideningscopeofpoverty, unemploymentandsocial absence ofdemocracy, humanrightsandfundamentalfreedoms, thecontinuityofsecurityas[...]refl ected inseveralexception Amman Declaration.Inthepreamble, theDeclarationnotedthat,invaryingdegrees, Arabcountrieswere characterisedby‘the separately. Itisuseful,however, torecall thenegativeassessmentofsituationinmostthesecountriesthatwasmade 6 5 association. displayed inrecent yearsby the StateCouncil,whichrecently issuedanimportantjudgmentontheestablishmentofahuman rig to above),aftermanyyearsofhesitationbytheSupreme Court,mustbehighlighted.Aswell,onepointoutthecourage In Egypt,theveryimportantjudgmentmadebySupreme ConstitutionalCourtonthesubjectofassociationlaw(referred defi ning andprotecting freedom ofassociation. faults ofadministrativepracticesandclarifyingthenature ofthereceipt forlegaldocuments(theIlmwaKhabar)purpose In Lebanon,forexample,theStateCounciland,atonepoint, CourtofCassation,playedaveryimportantrole inrectifyin publication oftheEMHRN,publication AMDF, OMDHandEspaceassociatif. SeetheEMHRNreport, Amman Declarationonfreedomofassociation, 1999. Seealso criticisms havebeenmadeaboutthisproposed law. In Jordan, ontheotherhand,amore restrictive lawisunderstudy;preliminary discussionshavetakenplaceandnumerous legislation. Morocco andPalestinehaveadoptednewlawsonassociationsthatcanbeseenasmuch more liberalthantheprevious sought toreplace theunfettered establishmentofassociationsbyaregime ofpriorauthorisation. In Lebanon,thelawofassociationshassurvivedtwoattemptsatimposingsevere restrictions, includingalegislativechanget rights movementasadangerous movementthatitiscommittedtomonitorveryclosely. that theConference ofArabInteriorMinisters-onethemostactiveandeffective pan-Arabbodies-considersthehuma organisations are perceived byArabregimes asoneofthegreatest dangerstheyface.Asevidenceofthis,itis enough toreca topoliticalopposition,areHuman rightsorganisations,inmanyArabcountriestheonlypossiblealternative prohibited. These public opinion,measures ofrepression orrestrictions againstassociations. used, withorwithoutjustifi cation, byseveralstates(includingEuropean ones)tolegitimise,essentiallyintheeyesofinte The waragainstterrorism, thefi ght againstIslamicassociationsandthefearoforganisedreligious fundamentalismare pretex Justice intheSouthand EastoftheMediterraneanRegion Freedom of Association intheEuro-MediterraneanRegion. Casablanca Declaration, October2001 5 . , 2005. 6 . rnational rnational rns, two rns, in the g the m in s of oth hat hts , a , a ts al n s ll f

OVERVIEW OVERVIEW 14 7 on thecountry. limited grounds spelledoutin thelegislation.Thesegrounds maybemore orlessnumerous andmore orlessabusive,depending authorities isoneoftheveryfoundationsfreedom ofassociation.Theadministrationmayprevent theissuanceofarecent o not anapplication,butonlyarequest thattheadministrationrecord theestablishment oftheassociation.Thispassiverole o a legalentity, withalloftheeffects attachedtothatstatus,uponthesubmission ofthewrittenstatement.Thestat authority through awrittenstatementcontainingnumberofelementsinformationdefi ned inthelaw. Theassociationbecome not contingentuponobtainingaprioradministrativeauthorisation butmerely requires thattheassociationinformcompeten a) Infreedom regimes (inEuropean states,Lebanon,Morocco andTurkey, forexample),theestablishmentofassociationsis 2. Freedom todeclare andregister through asimpleinformationmechanism are prohibited. Theyare referred toas‘secret associations’byseveralregimes andmaybesubjecttosevere penalties. exception) force allassociationstodeclare themselvestotheauthoritiesorobtainapriorauthorisation.Undeclared assoc b) Repression andcontrol Mediterranean,without regimes andeastern (suchasthoseinplaceallcountriesofthe southern associations donotenjoyajuristicpersonalitythatisdistinctfrom theirmembers. created withoutnecessarilyhavingtoinformtheadministrativeauthoritiesthrough aregistration system.Naturally, suchunde a) Freedom regimes (suchasembodiedinthelegislation ofseveralEuropean countries)recognise therightofassociationstob 1. Freedom toregister theassociationornot(juristicpersonality) and becomeapreserve of‘friends’theregime aswell asasource ofpoliticalandadministrativecorruption. freedom isnotestablished,there isareal riskthatthecreation ofassociationswilltakeplaceonaselectiveanddiscretio of theassociationisnotsubjecttoanyformpriorinterventionbyadministrativeorjudicialauthorities.Incaseexis members. Thedeclarationoftheassociation’s existencemaybeprovided bymeansofasimplestatement,buttheestablishment foundation offreedom ofassociation.Inthiscontext,associationsare created through thecommonvolitionoffounding The freedom toestablishanassociationwithouthavingobtainapermitorprioradministrative authorisationistheprincipa Part I-FORMATION ANDINCORPORATION 10 July1999 Bunian programme, developed of study, attheinitiativeofADDL principle offreedom ofassociation.Inparticular, onemustnotetheworkof18Arabjuristsfrom ninecountrieswho,aftertw Also worthyofmentionare severaldoctrinalefforts todefi ne thescopeandcontentofassociationlawinaccordance withthe Mediterranean HumanRightsNetwork. law, andonemustnoteinparticulartheefforts madebycivilsocietyinLebanon,Morocco andEgyptaswellbytheEuro- There hasbeenagrowing mobilisationofcivilsocietyinvariouscountriesfavourtheprotection andimprovement ofasso In thearea ofcivilsociety: and operation;(iv)Fundingtaxation;(v)Control,transparency governance oftheassociations. to theinterventionoflawinlifeassociations:(i)Formationandincorporation;(ii)Dissolutionsuspension;(iii) Accordingly, wehavestructured thispreliminary assessment,asinallofthecountryreports, intofi ve broad streams correspo as wellthosewhichcanbeplacedhalfwaybetweenfreedom andrepression (whichwewillcall‘control regimes’). regulations andpracticesinthematter(whichwewillcall‘freedom regimes’) andtheworst(whichwewillcall‘repression re by highlightingitsmainelements,illustratedwithexamplesfrom thedifferent countrychapters,inorder todetermine thebes for orviolationoffreedom ofassociation,wepropose tomeasure thedegree ofrespect fortheprinciplesoffreedom ofassoci For thepurposesofthisoverview, andwhileawaitingthedevelopmentofmore accurateindicators tomeasure theextentofresp Also referredtoasthe Arab Declaration or Amman Declaration. 7 . theDeclarationofPrinciplesandCriteriarelatingtoFreedomAssociationinArabCountrieson (Association pourladéfensedesdroitsetlibertés) andtheFriedrichNaumannFoundation’s Organisation tence ofthis nary basis ement is gimes’), o years ciation iations clared nly on nding ation f the ect e s t t l - repression ofthecompetentauthorities. are morepractices. Thesealternatives orlessfeasibleandmore orlesstolerated,dependingontheeffi ciency orthedegree o viable institutionalandproceduralinorder alternatives tocircumvent theabusesoflegalsysteminplaceorabusiveadmi b) Inrepression andcontrol regimes, whentheapplicationtoformanassociationisdenied,itoftenbecomesnecessary toseek entity thantheassociation. a) Infreedom regimes (where registration isdonethrough asimplestatement),there isnoneedtoseekanothertypeofinstitu 6. Institutionalalternativestotheassociation executive isfarfrom guaranteed,itisnotalwaysassured thatassociationswillgainbyappealing. right toappealthecourtsisalsoavailable.However, incountrieswhere theindependenceofjudiciaryinitsrelations for rejection mustbeexplained,setadeadlineforresponding orrecognise thatalack ofresponse isequivalenttoanapprova to limitthescopeofadministration’s discretion ormitigateitsdysfunction.Forexample,somelawsstipulatethatthere not subjectedtoanyremedy, andotherswhere acertainbalanceissoughtinthesensethatlawcontains provisions designe b) Inrepression andcontrol regimes, there are caseswhere thedenialofregistration orregistration delaysbytheauthoritie a) Infreedom regimes, administrativeandjudicialremedies are effi cient. 5. Administrativeandjudicialremedies incasesofdenialregistration orregistration delays police agencies(e.g.Lebanon,Egypt,Syria,Libya,etc.). for thepurposethatassociationintendstopursue.Thesecontrols are oftencarriedoutbyadministrativebodiesbutalso burdensome. Severalcontrols are conductedonthebackground ofthefoundingmembersaswellondesirabilityorneed b) Inrepression andcontrol regimes, theadministrativeconditionsthatmustbemetforregistration are complicated,lengthy a) Infreedom regimes, administrativeregistration procedures are simpleandnotburdensome. 4. Administrativeregistration procedure etc.). and confertothecompetentauthorityamore orlessdiscretionary powertodenyregistration (e.g.Tunisia, Egypt,Syria,Liby b) Inrepression andcontrol regimes, thecasesinwhichregistration ofanassociationmaybedeniedare more orlessnume denied are limited;theyare inkeepingwithconditionsoflegitimaterestrictionstandard andincompliancewithinternational a) Infreedom regimes (European states,Lebanon,Morocco, Turkey), thecasesinwhichregistration ofanassociationmay be 3. Casesinwhichregistration maybedenied acknowledged orrecorded. Thesilenceoftheauthoritiesisthentantamounttoarejection. a matterthatislefttothediscretion oftheauthorities.Insomecases,applicationsforcreation ofanassociationare c) Inrepression regimes (inEgypt,SyriaandLibya,forexample),thecreation ofassociationsissubjecttoobtaining priora prior authorisationregime. established inlawandadministrativepractice,whichoftentransforms,defacto,theregime basedonasimplestatementinto b) Incontrol regimes (inLebaneseadministrativepractice,forexample),there isamarkeddifference betweentheprinciple by theSupreme Constitutional Court)specifi cally prohibited thistypeofassociationdisguisedasacompany. authorities andoftentoleratedbythem,asdemonstratedthe situation inEgypt,where theassociationlaw(whichwasrepeal of anassociation,despitethefi scal problems thatthismayentail(Egypt,Jordan andLebanon).Thispracticeiswell knownto When thelegislationisinviolationofprinciplefreedom ofassociation,somegroups decidetoestablishacompany inst uthorisation, nistrative not even withthe s. tional s are ason rous and the ead l. A ed by a, d f

OVERVIEW OVERVIEW 16 for guidance. bylawsanddefilatitude infreely draftingandmodifyingitsstatutesinternal ning its purpose. Modelstatutesare provide of activityorcategorytheassociation maynotbeobstaclestoitsestablishment.Themembers oftheassociationenjoybroa a) Infreedom regimes, theassociation’s purposeandstatutes,theidentity, opinionsornumberofitsfoundingmembers,thear 1. Freedom todraftand modify thestatutes(includingpurpose)andbylaws law. Several othertypesofcorrective measure canbeadoptedwhilerespecting theprincipleoffreedom ofassociation. the state,whichisnotalwaysmotivatedbyaninterest inthedemocraticmanagementofassociationitself,cannotbejusti accordance withtherulesand conditionsrequired democracy, byinternal transparency andintegrity. However, direct interventi kind ofdecentralisationordevolutionsocialservicesandsometimes ofpoliticalservices.Clearly, notallassociations op independent civilsocietybutinsteadrunstheriskofcreating aseriesoforganisationsthatare more orlesslinkedtothes its ownmembers.Anyabusiveorillegalinterference bytheauthoritiesinthisprivateentitydoesnotfosterdevelopment An associationisfi rst andforemost acontract.Assuch,itsmodeofoperationcanandmusttherefore bedecideduponfreely b Part III-ORGANISATION ANDOPERATION already inthehandsofcompetentministry. that theassociationmightneedtodefenditselfagainstallegedviolationsare outofreach becausetheyare sequestered o In theory, theassociationhasarighttoappealtribunal.Very often,thatrightisonlyavailableintheorybecauseth - - Prohibit theallegedpersonsresponsible fortheinfraction from beingcandidatesintheelections; - Appointadirector oranentire board ofdirectors foraperioddeterminedbytheminister; violation ofanykindthelaworassociation’s statute,theMinistryofSocialAffairs can take oneofthefollowing any third partyattheassociation’s meetings;fund-raisingbefore aprioradministrativeauthorisationhasbeenobtained.Inc and afi ne for thefollowinginfractions:launchofanyactivitybefore priorauthorisationhasbeenobtained;theattendan For example,Egyptianlawprovides thatthedirectors and foundingmembersofanassociationare liabletosixmonths’imprison relation totheinfractions. statute. Casesofcriminalproceedings againstassociation’s membersanddirectors are numerous andoftendisproportionate in dissolution maybedecidedare veryvagueandcanoftenbenomore thanabenignviolationofthelaworassociation’s o b) Incontrol andrepression regimes, thecompetentauthorityenjoysexorbitantdiscretionary powers.Thecausesunderwhich explicitly defi ned inthelegislation. fi nal judgmentby acourtaftertheassociationhasbeenabletodefenditscaseinpublicandfairtrial,limitedsituati do nothavetherighttodissolveassociations.Dissolutionmustfollowadecisionbyassociation’s owncompetentbodyora a) Infreedom regimes (European states,Lebanon,Morocco, Turkey, Israel),theestablishedprincipleisthatpublicauthori the needarises. of Damoclesthatisusedbothtokeepassociationsare beingwatchedbytheauthoritiesonatightleashandtostrikewhe administration orevenbythejudicialsystem-whenindependenceofjudiciaryisfarfrom guaranteed-itbecomesasw The threat ofdissolutionisasimportantforanassociationtheestablishmentphase.When dissolutionisdecideduponby Part II-DISSOLUTIONANDSUSPENSION - competent authorityseizestheassociation’s property anddistributesitamongsocialorganisationsofitschoice. appoint newdirectors, mergetheassociationwithanother, ordissolvethe association. Whendissolutionhasoccurred, the Close theassociation’s offi ce foraperioddeterminedbytheministeruntilhedecideswhatstepshouldbetakenincase: by law, thusavoidingtheriskthatassociationcouldbecharacterised assecret. statement ofinformationtothecompetentauthoritythrough abailiff, whoseminutesconfi rm thereceipt ofthedocumentsrequi When administrativepracticeisinviolationofthelaw(asLebanon),association’s foundingmemberscanforward the e documents ons thatare measures: erate in tate, a ase of d only fiin ed on by ce of ment of an the eas ties ord red wn d n y r

b) Incontrol andrepression regimes, associationsare neveraskedtotakepart insuchconsultations. human rightsplan). in specifi c areas (inLebanon,forexample,localhumanrightsorganisationswere consultedaspartoftheformulation thenati a) Infreedom regimes, theinvolvementofspecialisedassociationsindevelopmentpublicpolicyisencouraged, partic 4. Participationinpublic-interest consultationsanddecisions - - - - - example): this byspecifi c repressive publicorprivatemeetings,thewrittenandaudiovisualmediaintern laws(rulesconcerning b) Incontrol andrepression regimes, competentauthoritiesinterfere inthestrangestandmostillegitimateways,encouragedi thereon. own statutesandbylaws.Thepublicauthoritiesmaynotinterfere withitsmeetings,elections oractivities,norexertanyinfl a) Infreedom regimes (European states,Lebanon,Morocco, Turkey), theassociationismanagedbybodiesprovided forinits 3. Non-interference inthemanagementandactivitiesofassociations for prioridentitycontrol bythesecurityservices(asinSyria). b) Incontrol andrepression regimes, thecompetentauthoritycandecidewhojoinanassociationbyputtinginplaceaproc specifi c stipulationsregarding membership. a) Infreedom regimes, there isnolegallimitpreventing anindividualfrom joining orleavinganassociation,unlessitsstat 2. Freedom tojoinorleavetheassociation is required tobroaden thegeographicalscopeofactivity. wheregeographical scopeofactivityislimitedtothegovernorate associationregistered. Aspecialadministrativeauth wishing todevelopitsactivitiesinseveralareas mustobtainaspecialpermissionfrom theMinistryofSocialAffairs. Simila a singlearea ofactivityamong12areas predefi ned bythelegislation.Anyactivityofapoliticalnature isbanned.Theassoc violation oftheprinciplefreedom ofassociationand,inLebanon,aviolationitsownlaws.InEgypt,anmus association toasinglearea. Anyactivityfallingoutsidethe‘authorised’area isseenasaninfringementofthelaw. Thispr Similarly, certainlegislations(inTunisia, forexample)andcertainpractices(asinLebanon)tendtorestrict theactivities have beenestablishedbythecompetentauthority. Anydeviationfrom thismodeloranychangetoitmustfi rst beapproved. b) Incontrol andrepression regimes, associationsare notfree toestablishtheirownstatutesandbylawsbutmustadoptthose found inLibya,Syria,EgyptandTunisia. Interference intheassociation’s publications(includingwebsites):thehighestnumbersofviolationsfreedom ofexpression in Libya,SyriaandAlgeria. Interference intherightofassociationstojoinandworkwithregional networks:thistypeofrestriction andinternational i abroad totakepartinanassociationaleventmustobtainaspecialauthorisation. Interference inthetravelsofassociationmembers:Libya,Syria,Tunisia andAlgeria,anassociationmemberwishingtotrav Registrar hastheauthoritytocontrol theactivitiesofassociations,whichcanseriouslythreaten theirindependence. competent authority):examplesofthisare foundinLibya,Syria,Algeria,Tunisia and,toalesserextent,Jordan. InIsrael, Interference intheactivitiesofassociation(forexample,bydemandingthataparticular documentbeforwarded tothe meeting doesnotmeetthegoalsofassociation. organisers ofmeetingsmustfi rst obtainpriorauthorisation,whichmaybedeniedbythecompetentministryifitdeemsthatth from thecompetentauthoritymayberequired fortheeventtobeconsidered valid(e.g.Libya,Syria,Egypt,Algeria).InSyria Interference inmeetings:Publicorprivatemeetingsmaynotbeheldwithoutpriorauthorisation. Thepresence ofarepresentat utes provide actice isa t choose ofeach orisation s found uence rly, the which et, for edure iation , the onal are ular the ive el n e

OVERVIEW OVERVIEW 18 associations aswelltheirlegitimacyintheeyesofmembers andofsocietyingeneral. strengthened byaccounting transparencymonitoring,helptostrengthen andeffectiveexternal thepubliccredibili internal Freedom orofanycontrols.governance, ofassociationdoes notimplytheabsenceofgoodgovernance Indeed,internal PART V-CONTROL,GOVERNANCEANDTRANSPARENCY associations mustreveal thesource anduseofdonations.InLibyaSyria,fundingfrom outsidesources isbannedentirely. raising from individualsorthrough theorganisationofa charity event,aperformance,sportsetc.).InTunisia andA authorisation bytheauthoritiesisalsorequired forprivatefund-raisingactivities,regardless oftheformtheymaytake(fu Any fi nancial contributionfrom abroad mustreceive priorapproval, andviolationsofthisrulemayattractsevere penalties.P power. Thesameistruewithrespect totheaccessofassociationspublicfunds. The statusofpublic-interest associationissubjecttoconditionsthatgivethecompetentauthorityabroad marginfordiscret competent authority. b) Incontrol andrepression regimes, thefi nances ofassociations,regardless oftheirarea ofactivity, are underthecontrol from abroad. capacity doesnotseemtoposeanyproblems. There are norestrictions ontheabilityofLebaneseassociationstoobtainfundin In Lebanon,however, althoughassociationsregistered underordinary lawmaynotownreal estateorreceive bequests,theirleg Associations recognised asservingthepublicinterest have afavourabletaxationregime andapreferential accesstopublicfu individuals andcorporations. only partiallegalcapacitywhilethelatterhavemore substantiallegalcapacity, althoughitremains limitedrelative tothat between associationsthatare registered through asimplystatementandthosewhichservepublicpurpose.Theformerenjoy From thepointofviewlegalcapacity, mostassociationlawsintheEuro-Mediterranean region acknowledgethedistinction provided thattheseproceeds are notredistributed tothemembers. Associations alsohavetherighttoorganiseactivitiesintendedgenerateprofi ts thatcanbeusedtofi nance theiractiviti donations, membershipfees,donationsfrom members,giftsandassistanceprovided byanylocalorforeign entityorindividual. a) Infreedom regimes, associationshavetherighttosecure theirownfi nancial resources through suchmeansasphilanthropic resources. fi nd themselvesinasituationwhere theiractivitiesandeffectiveness are limitedtoasmallgroup ofvolunteerswithv them onlyaverysmallmargintofi nance theiractivitiesfrom theirownresources orfromsources, international andthatthey or, onthecontrary, keeptheminapositionofdependencyandweakness.Theriskfortheassociationsisthatlawmaygive The legalcapacityandtaxationregime thatare appliedtoassociationsare veryeffective tools,bothtostrengthen theireffe Part IV-FUNDINGANDTAXATION invoked forsuchpractices. discrimination againstwomeniscommon,withcustoms,traditionsandrespect forpublicmoralitybeingamongthereasons No nationalreport hascitedspecifi c legaldiscriminationagainstthepresence ofwomenonassociationbodies.However, 5. Participationofwomeninassociationbodies enjoyedby ery limited ctiveness ofthe ionary lgeria, may nds. ty of nd- rior es, al g

a toolofdemocraticandsocialdevelopment,ratherthanasaninstrument ofrepression usedbythepoliticalauthorities. The actionweadvocateisnotanintellectualexercise orapurely legaldiscussionbutitdemonstratestheimportanceof l potential forefforts atimprovement toproduce someresults, smallthoughtheymaybe. interventions, adaptedtothecontextandneedsofeach.Somecountriesremain farfrom thegoal,whileothershaveagreater Additionally, practicalrecommendations willhavetobedevelopedforeachcountry, andtheseshouldservetodefi ne targeted association law, asignoranceandindifference astheworstenemies. legal profession, aboutfreedom ofassociation,aswell aboutitsscopeandtheprinciplesstandards thatmustgov In thiscontext,thefi rst stepistoincrease awareness-raising efforts aimedatsocietyingeneral,butalso-andespecially association. Thetaskisurgent–criticallysoinseveralcountries. well asthedevelopmentofanindependentandeffective civilsociety, mustbebasedonimproved association lawsandfreedom o these countriestoprovide abroader democraticregime andtoensure respect fortheruleoflawandsustainabledevelopment,a Mediterranean,inviolationoftheprinciple offreedom ofassociation.Anyattemptto andsouthern in countriesoftheeastern This overviewclearlyreveals thescopeofthreats andoftheactualconsequencesthatare attachedtofl awed associationl Conclusions and Libya). with penaltiesthatcangoasfarprisonsentences(Libya,Algeria,Syria,Tunisia andEgypt),evenadeathsentence(Sy b) Incontrol andrepression regimes, themainfeature ofthesanctionregime istheextreme criminalisationofthesmallestvi or appliedbythejudicialauthoritiesafterrighttodefendoneselfhasbeenguaranteedthrough afair, publictrial. of theassociationanditsmembersmustnotbesubjecttocriminalsanctions.Inallcases,suchpenaltiesmayonlydetermin a) Infreedom regimes, theprincipleofproportionality betweenthepenaltyandinfractionmustbeapplied.Theordinary ac 2. Sanctions b) Incontrol andrepression regimes, therole ofthepublicauthoritiesisexcessive anddisproportionate. - publicauthorities(taxationcontrols only),withinthelimitsofspecialtaxprivilegesandregimes enjoyedbytheassoc - ordinary tribunals; - - membersoftheassociationwithrespect toallofitsaffairs; entities: they mustbeaccountabletoallinterested individuals,withinthelimitsofthatinterest, whichwarrantsmonitoringbythefo a) Infreedom controls regimes, and external performedbyawidevarietyofentities.For associationsare subjecttointernal 1. Supervisoryauthoritiesandfreedom for fi nancial transparency whentheassociationseeksfundingthrough publicdonations); public opinionandsocietywhere there isalegitimategeneralinterest intheassociation’s activities(forexample,therequi iation. example, olations, -atthe rement llowing tivities aw as bring aws ern ern ed ria s f 19

OVERVIEW OVERVIEW 20 • Encouragetheleadershipof EMP tostopfreezingthefundsgivenhumanrightsdefenders. • Givelogisticalsupporttohumanrightsactivistsbymeansoftraining andcapacity-buildingprogramsactivities; outadvocacyactivities infavourofhumanrightsdefenderswiththeleadershipEMP; • Carry • • • • THE DECISION-MAKINGORGANSOFEUROPEANUNIONARECALLEDUPONTO: • • • • • • • • • ARE CALLEDUPONTO: THE GOVERNMENTANDAUTHORITIESOF11COUNTRIESSOUTHEASTMEDITERRANEAN countries; as wellinthediscussionsofamoretechnicalnaturewithinsub-committees betweentheEUandMediterranean Give urgentprioritytofreedomofassociationinallpoliticalanddiplomatic discussionswiththegovernmentsofEMP, Neighbourhood Policy(ENP)withthepartnercountries; Take concretestepstoguaranteefreedom ofassociationintheimplementationActionplansEuropean rights defendersasregardtofreedomofassociation; Take measurestoimplementarticle2oftheAssociation AgreementsandtheGuidelinesofEUonhuman allnecessary associations andhumanrightsdefenders; Publicly denounceanyrepressivemeasurestakenbygovernmentsoftheEuro-MediterraneanPartnership(EMP)against Encourage civilsocietytoparticipateinthedecision-makingprocessatnationallevel. Give totheassociationsrightbeneﬁ t fromforeignfunding; empowerment inthemanagementofassociations; associations, thenecessitytowidenaccessofwomenassociativelifeandencouragetheirparticipation levelandinthepracticesofauthoritiesresponsible,but also intheapproachof Emphasize attheregulatory tothejudicialbranchexclusivepowerdissolveanassociation; Reserve (1985)expresslyrefersto; on theIndependenceofJudiciary expression inaccordancewiththeUniversalDeclarationofHumanRights,towhicharticle8FundamentalPrinciples become membersofassociations,torecognizeandrespecttherightjudgesenjoyfreedomsassociation Having inmindthatalmostallthecountriesofregionprohibitorseverelyrestrictrightjudgestofreelycreateo by itsfoundingmembersshouldsufﬁ ce; subjected topriorauthorizationgrantedbythegovernment;asimpledeclarationonexistenceofassociationmade When agroupwishestosetupanassociation,ensurethattheregistrationprocedureofthistypelegalentityisnot Elaborate aregionalconventiononfreedomofassociation; Africa; on December9,1998,aswellthe5,2005ResolutionofAfricanUnionhumanrightsdefendersin and ProtectUniversallyRecognizedHumanRightsFundamentalFreedomsadoptedbytheUNGeneralAssembly Implement theDeclarationonRightsandResponsibilityofIndividuals,GroupsOrgansSocietytoPromote Committee onHumanRights; 21) andfreedomofassociation(article22)totakeintoaccounttherelevantjurisprudenceUnitedNations Abide bytheInternationalCovenantonCivilandPoliticalRightsthatrecognizesrightstofreedomofassembly(article GENERAL RECOMMENDATIONS FORTHEEUROPEANUNIONAND THE 11COUNTRIESSOUTHANDEASTOFMEDITERRANEAN r

RECOMMENDATIONS Freedom of association in Algeria

by Marie Ghantous, Khémaïs Chammari and the EMHRN secretariat 1

Introduction

ENABLING ENVIRONMENT OF CIVIL The Law of 1990 was greeted with enthusiasm, and associations SOCIETY - «THE GENERAL SETTING» of all types came into being. Aside from the traditional sporting, cultural, social, religious and charitable organizations, others 1 - Civil society landscape devoted to the environment, sustainable development, ecology, human rights, national identity, were also created. Algeria, as a French department, was subjected to colonial rule until it gained independence on July 5 1962. During the colonial The ﬁ rst free and pluralistic elections since Independence were period, the associative movement was basically restricted to the to take place in June of the same year. Drawing its popularity European elites in urban areas. However, taking advantage of the in part from the thousands of religious associations dedicated French Law on associations of 1901, several associations were to the construction and management of mosques, the Front created and run by Algerians from the 1920s onward. During islamique du salut won the elections by a large margin. that period, a number of Muslim, sporting, cultural or musical associations existed and sometimes prospered in the shade of Following this period of great dynamism, euphoria and conﬂ icting the colonial institutions provisions. A number of them, such as social trends, the associative movement, like the rest of Algerian the Muslim Boy Scouts, were even to serve as a springboard to society, was to experience a long period of hibernation during the national liberation movement. the civil war that broke out in the aftermath of the victory of the Front islamique du salut (FIS) at the parliamentary elections of

1 It is in 1964 that the liberal spirit of the Law of 1901 was to be 1991, that was to cost more than 200,000 lives . curbed for the fi rst time by the Algerian government. A decree of March 2, 1964, instructs prefects “to impede the formation By presidential decree, a state of emergency was declared for of associations that, under the guise of social, cultural or artistic a period of 12 months on February 9, 1992, and prolonged for activities, tend to pursue political ends that undermine the internal an indefi nite period in 1993. This maintenance of the state of and external security of the State.” Authoritarianism was infringing emergency, which granted extensive powers to the authorities, on several decades of liberalism. in particular the military, had disastrous consequences for the associative movement. In the name of public order, public Starting with the “Berber Spring” of 1980 and the riots of events and meetings were prohibited and newspapers were October 5, 1988, the era of one-party rule was at last to recede suspended or suppressed. into the distance. Hundreds of cultural associations devoted to the defence of Berber culture and/or language were to fl ourish Associations devoted to the defence of human rights were from the 1980s onward. to suffer even more in the aftermath of the adoption, through referendums held in 1999 and 2005, of the Law on civilian At the same time, a liberal wing that was developing within the concord and the Charter for peace and national reconciliation. ruling party, the FLN, called for “less government control for a The Charter granted amnesty to a large number of individuals better future”. In July 1987, the minister of the Interior had to responsible for major human rights violations. Furthermore, defend the principle of a new legislation on association before article 46 of Edict n° 06-01 (February 17, 2006) states that a hostile parliament exclusively composed of deputies from the anyone who, by his/her declarations, writings or in any other FLN, staunchly opposed to pluralism in the social and cultural way exploits the national tragedy to undermine the institutions sphere. This modest reform was soon followed by Law n° 90-31 of Algeria, weaken the state, harm the reputation of its agents of December 4, 1990, still in force. who have served the country with dignity, or tarnish the image

1 Editors of the 11 country-reports 2 See estimations of international human rights organizations such as Amnesty International, Human Rights Watch and the International Federation for Human Rights (FIDH)

21 Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 22 2 exception ofprofessional associations) were tobetreated with against theassociativemovement.Allassociations(with enemies oftheRevolution”tolaunchasystematicassault the pretext threat” of“external andtheactionof“irreducible used university campusesinAlgerandOran.Thegovernment and thegrowing unrest thattookplacein1970and1971 on religious brotherhoods wellentrenched inthecountryside), fearedprivate land(thegovernment thehostilityofzaouias, was thedecisiontoimplementanagrarianreform andnationalize associations. Thereasons behindthisauthoritarianlegislation or refuses registrations andcloselyoverseestheactivitiesofall mandatory forallassociations.Theheadofdepartmentaccepts The EdictofDecember3,1971,statesthatpriorregistration is Charter ofAlger. concept oftheone-partystate,whichwaslaterenshrinedin As earlyas1964,intellectualsoftheFLNwere promoting the willtaketheircuefromLater governments thoseearlyabuses. associations, prohibited politicalpartiesandclosednewspapers. etc. (Article19).Yet, oftheperioddissolved thegovernment of thepress, freedom ofassociation,freedom ofspeech, determination ofthecountrytoenshrinefreedoms: freedom The ﬁ rst ConstitutionofAlgeria(1963)proclaimed the 2 -Legislation the authorities. theyaremouthpieces ofthegovernment, closelywatchedby are fewinnumberandmarginalized.Forrefusing tobemere confrontation orthepromotion anddefenceofhuman rights Those amongtheassociationsthathavechosenpathof clientelism” aimedatthemere allocationofresources. leaders, thusfavouringthestrengthening of“institutional associations tendtofollowtheleadofwell-knownpolitical the shortcomingsofAlgeriansocietyandinstitutions,some Insteadoflookingcriticallyat dependent onthegovernment. The existingassociationsare deemedtobeexcessively civil societyfrom developingitsautonomyandcompetencies. to theinstitutionalbarriersdeliberatelyputinplaceprevent pessimistic picture ofthepresent situationandpointinparticular Those whostudytheassociativemovementinAlgeriadrawa des famillesdedisparus light onthedisappearanceoftheirlovedonesas human rightsorganizationsandgroups whoattempttoshed This lawinfactcriminalizestoalargeextenttheactivitiesof to 5yearsandaﬁ ne of250,000to500,000dinars. of Algeriainternationally, isliabletoatermofimprisonment3 Lawn°90-31ofDecember 4, 1990, onthefreedomof association

. collectifs regulatory departmentofthe districtofAlger. submitted arequest toregularize itssituationtotheheadof to register despiterepeated efforts, includingin2003,whenit in Algeria.Forinstance,SOSDisparu(e)s,hasnotbeenable the freedom toformassociationshavebeeninstitutionalized associations are notauthorized.Inpractice,restrictions to formalities. Asaconsequence,non-declared orunincorporated associations maybesetupwithoutpriorauthorizationand information /notifi 2 -Istheregistration systembased onlicensingorsimple arbitrary orsecret detentionsinAlgeria. andgiveanewlifetotheiractionon grievances internationally facilitate theworkofAlgerianassociationswhowishtoairtheir of theU.N.inDecember2006,thisnewlegalinstrumentcould Disappearance. AdoptedbyconsensustheGeneralAssembly Convention fortheProtection ofAllPersonsfrom Enforced recently signedtheInternational The Algeriangovernment had beenadoptedinJuly1989. 1990. Anotherlaw, regulating associations ofapoliticalnature, The present legislationonassociationswasadoptedinDecember associative life. party stateandtheFLNconstantinterferences inallaspectof organizations willhavetofacethestructuralhostilityofone- of thatfreedom issubjectedtolegislation.Humanrights association isrecognized butnotguaranteed,andtheexercise optimistic outlookthantheConstitutionof1963.Freedom of proclamation oftheNationalCharter, refl ects amuchless The Constitutionof1976,adoptedintheaftermath of theInterior. control andcloselywatchedbytheprefects andtheMinistry distrust andsubjectedtopermanent,arbitraryadministrative “harmful”. to refuse accreditation toanyassociationthatisdeemed prefect ortheMinistry. Thisprocedure allowstheauthorities recognized onlyonceithas been grantedaccreditation bythe The Edictof1971setforththatanassociationislegally Nowhere isitmentionedinLawn°90-31(1990) associations? 1 -Doesthesystemallowfornon-declared orunincorporated FORMATION ANDINCORPORATION Part I: cation? 2 that association isdeemeddulyregistered. 8 daysbefore theendof 60-dayperiod.Failingthat,the to theadministrativesectionofappealcourt,atlatest that theregistration iscontrarytothelaw, itmustrefer thecase If, withina60-dayperiod,theauthorityresponsible considers case ofassociationsanationalorinter-departmental scope. case oflocalassociation,ortotheMinistryInterior, inthe The declarationmustbesubmittedtothePrefecture, inthe this day, thePrefectures stillissueready-made statutes. the Law. administrative orjudicialsanctionsprovide forbyArticle45of of associationsoperateunderthepermanentthreat ofarbitrary issued theobligatoryreceipt ofaccreditation. Acertainnumber grievances ofthefoundersassociationsthatwere never Ministry oftheInterior. TheAlgerianpress hasoftenaired the on acasebycasbasis,oftenunderinstructionsfrom the In theabsenceofregulatoryoffi norms,government cials act associative movementnowadaysare lessthan30yearsold. of anassociation,moreover, mostpeopleinvolvedwiththe struggle fornationalliberation - hadaconductthat - donotenjoycivilrights; - are foreign nationals; members: that anassociationmaynotbeaccredited ifitsfounding conformity tothisLaw”isnecessary. However, Article4states Article 7ofLawn°90-31provides thatonlya“verifi cation of (e.g. race, security, religion, andpolitics)? 3 -Whatare thebaseuponwhichregistration canberejected - - - Depositofadeclarationincorporationbefore theauthorities; three formalities: association is“regularized” onlyonceithasfulfi lled thefollowing Article 7ofLawn°90-31(1990)statesthatthestatusan 3 the documentsthatmustbedeposited be includedinthestatutesofanassociation,aswellalist Article 9and23ofLawn°90-31specifytheelementsthatmust number ofincorporators)? 4 -Howeasyordiffi OnarDerras, Le phénomène associatifal’ombredesréformes encours Algérie : réalitésetperspectives, CRASC, Insanyat2 Publication ofanincorporationnoticeinanationalnewspaper. deposit ofadeclaration; Issuance ofareceipt ofregistration within90daysofthe cult istheregistration (e.g. time, cost, was detrimentaltotheinterestsof -aneasywaytodelaythecreation under painofnullity . To active atthenationallevel. the MinistryofInteriororlocalauthorities,only1,500were found that,of75,000declared associationsaccredited by A studyof446associationsoperatingin24Prefectures has new receipt ofregistration. nevertheless ordered, forobscure fi scal reasons, torequest a were operatingwellbefore theadoptionofLawn°90-31were as thelawprovide for. Furthermore, localassociationsthat had notbeenreferred totheappealcourtbyprefecture, requests rejected forirregularity despitethefactthattheircase In practice,numerous associationshavehadtheirregistration legal entity? 6 -Doesregistration automaticallyentailobtainingseparate decided torefuse arequest forregistration (seequestion4) when theauthorities(Prefecture orMinistryoftheInterior)have There are noremedies othersthantheoneprovided forbythelaw is denied, delayed (e.g. judicial, administrative)? 5 –Are there effective remedies inthecaseswhere registration subjected tothesamelegislation. of entitiesoperateunderthenamefoundation,buttheyare There aretotheassociation.Anumber notlegalalternatives company, atrust, a and incorporate anassociationisdenied(e.g. incorporate asa 7 -Are there otherviablealternatives iftherighttofreely form long astheyare neededforitsoperations. moveable orimmoveableassetsbydonationpurchase, as are related tothepurpose of itsmembersare atstake.Itmayalsosigncontractsthat in thestatutes,andthatinterests oftheassociationorthose initiated are related tothepurposeofassociationsetforth exercise thislegalcapacityaslongtheproceedings legal capacitythemomentitisincorporated(Article16).Itmay The associationisdeemedtobealegalentityandpossess served withoutdemur. authorities andwere subservienttotheauthoritiesthatthey prominent associationswere created attheinitiativeof Wakf ) (objet) 3 Thestudyalsorevealed thatmany oftheassociationoracquire 8 (April-June2005). 23

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 24 operate withouthavingobtainedtheiraccreditation. association. Inpractice,dozensoflocalornationalassociations attempts toreactivate anon-accredited, suspendedordissolved and afi ne offrom 50,000to100,000dinarsforanyonewho The lawprovide forapenaltyofthree monthsimprisonment withdrawal oftheiraccreditation (Article44). operations themomenttheyare advisedofthesuspensionor Lastly, foreign associations,andonlythose,mustceasetheir down themomentauthoritiessubmitacasetocourts. suspended. Thepremises oftheassociationmaybeshut suspension, anytransferofassetstotheassociationis 5 4 incorporation request ortocompelitredefi ne itspurpose. provision givesmuchleewaytotheauthoritiesreject any system, publicorder, publicmoralityorexistingregulations. This may existifitspurposecontravenestheestablishedinstitutional the association.UnderArticle5ofLawn°90-31,noassociation government’s attitudeontheissueof the setpurpose Since theEdictof1971,there hasbeennochangeinthe from thisprovision. statutes mustcontain.Thefoundingmembersmaynotdeviate Article 23ofLawn°90-31setforththeelementsthat own object?(Are such documentsimposed?To whatextent?) amend theirownstructures andby-laws andtodeterminetheir 1 -Whatistheextentoffreedom ofmemberstodraft and ORGANIZATION ANDOPERATION Part III movement According tothetestimonyofactorsassociative system, publicmoralityorthelaw it is Article 5alsostatesthatanassociationisipsofactodissolvedif result inthejudicialdissolutionofassociation(Article35). the associationsetforthinitsstatutes.Suchconductmayalso in breech ofthelaworare notcompatiblewiththepurposeof to suspenditsactivitiesifitisdeemedthatthoseare the authorityresponsible Article 32ofLawn°90-31(1990)statesthat, certain extent,defertothejudiciary. must,toa liberalization ofthelate1980s,government without havingtogothrough thejudicialcourts.Since couldsuspendanassociation Up to1987,thegovernment DISSOLUTION ANDSUSPENSION Part II Cf. Radioprogram Ibid founded ongoalsthatcontravenetheestablishedinstitutional 4 whenanappealislodgedinacaseofjudicial , «De fi l enaiguille» , thecourtsmayorder anassociation , Algier, Chaîne3, hostedbyMayaZerrouki. . at therequestof (objet) of linked to the government andrulingparty.linked tothegovernment publications, are thosewhose membershipismore closely associations, thosethatare wellendowedwithoffi ces and practice, onecannotfailtonoticethatthemostdynamic If onelooksatthelegislation,there isnointerference but,in by “supervisors”? attendance ofmeetings(Board, General assemblies, elections) 3 -Isthere anyinterference inthecorporate bodies:e.g. to theinterestsofstrugglefornationalliberation rights and,abovealldidnothaveaconductthatwas members are Algeriannationals,are inpossessionoftheircivil The authoritiesreserve therighttoverifythatfounding consequences thatmayresult. sign adocumentconfi rming theirmembershipbecauseofthe that lacklogisticalmeansorforcandidateswhoare hesitantto the association.Thismaycauseadiffi culty forassociations declaration thatmustbeconfi rmed inadocumentissuedby member ofanassociation,onemustsignamembership Article 25ofLawn°90-31statesthat,inorder tobecomea leave associations? 2 -Howstrictisthelevel offreedom ofmemberstoadhere toor Civil andPoliticalRightsthatAlgeriahasundertakentorespect. Covenanton fundamental rightsguaranteedbytheInternational and itsenablingregulations contraveneonmanypointsthe Furthermore, theCharterfor peaceandnationalreconciliation expressing strong anti-Islamicthoughts. “national reconciliation” intheir resolutions andtorefrain from been strongly pressured lineof toadoptthegovernment For instance,thefamiliesofvictims“Islamicterrorism” have overt supportofassociationsforthepoliciesgovernment. national level,donothesitatetointervenedirectly toobtainthe It seemsquiteobviousthattheauthorities,beitatlocalor decide onprojects andactivities?Ifyes, howandwhy? 5 -Are there anyinterference inthefreedom ofassociationto account foronly16%ofthemembershipassociations. between members.Itshouldbenotedhoweverthatwomen provisions inthestatuteofassociations,aswelldiscrimination Article 24ofLawn°90-31prohibits theinsertionofdiscriminatory offi limiting orbanningparticipationofwomen inassociational 4 -Are there anyrestrictions (legalordefacto)promoting ces (e.g. Board)? . detrimental 5

placed onprobation. the familiesofdisappeared persons.Theindividualwaslater incriminated handoutmerely statedthelegitimatedemandsof of ahandoutthatisdetrimentaltonationalinterest”. Yet, the police custodyforfourhoursandlaterindicted“possession when returninghomeafteraweeklymeeting.Hewaskeptin SOS Disparu(e)swasarrested onthe14thofSeptember2005 Following thedistributionofahandoutinAlger, a memberof stated intheirstatutes. even ifthoseactivitiesare notinconformitywiththepurpose humanitarian activitiesandpromote themintheirbrochures, their offi cials bestmaster. Furthermore, manyNGOsdevelop many NGOscontinuetocommunicateinthelanguagethat However, thosetwomeasures are notappliedinpracticeand publish theirmainbulletininArabic. Moreover, Article19(2)statesthatAlgerianassociationmust critical ofcertainprovisions oftheFamilyCode. could beprohibited from publishingabrochure thatwouldbe social). Thus,anNGOactiveinthefi eld ofdomesticviolence of theassociationisincompatiblewithitsstatedpurpose(objet activities ofanassociation,underthepretext thatarelated action the authoritiesexcusetointerfere withthemanagementand The lastpartofthearticleisworded insuchawaythatitgives and distributebulletinsbrochures Article 19ofLawn°90-31statesthatanassociationmaypublish develop internet sites)? to freely communicate(e.g. accesstomedia, topublishand 7 -Are associationssubjecttospecifi authorities the priorconsentofMinistryInteriorandlocal no publicmeetingoreventofanykindmaybeheldwithout Algeria stilllivesunderthestateofemergency, andtherefore, According toFarouk Ksentini,president oftheCNCPPDH prefects toprohibit publicmeetingsorganizedbylocalNGOs. exemplifi offies thedetermination ofgovernment cials suchas justice commissionsestablishedacross theworld.Thisattitude Peace andConciliation”wastofocusonthevarioustruth humanrightsNGOs.This“SeminarforTruth,international and transitionaljustice,organizedinAlgerbyAlgerian Seminaronenforcedof theinternational disappearances prohibitedOn February7,2007,thegovernment holding international travel) restricted inanyway? private andpublicmeetingstomove freely (including 6 -Istheassociation’s righttofreely assembleororganize 7 6 L’Expression of02/11/07: «Colloque surlesdisparitionsforcées: Ksentinijustifi e l’interdiction» The NationalConsultative Commissionforpromotionandprotection ofHumanRights 7 . c limitationontheirright “in linewithitspurpose” 6 . , their workprograms. outlook anddonotseektoinvolvecivilsocietywhentheydraft social legitimacy. Localauthoritiesare stillhighlybureaucratic in The associativemovementisstillseekingrecognition and are unlikelytopromote orsupportitspoliciesandinitiatives. The politicalestablishmentisnotinterested inassociationsthat nature andlevel ofsuchconsultations? participation indecidingonpublicinterest issues?Whatisthe 9 -Istheparticipationofassociationssoughtforopinionor was takingplaceinBourmerdes. algérienne pourladéfensedesdroits del’Homme(LADDH)that to foreign participantsofthenationalcongress oftheLigue refusedgovernment inSeptember2005tograntentrancevisas There are exceptionsthough,suchaswhentheAlgerian authorities. educational work,withoutinterference from theAlgerian in socialwork,publichealth,youthrecreational activities, have establishedpartnershipswithAlgerianNGOsinvolved During thelastseveralyears,acertainnumberofFrench NGOs put theirresources incommon. appears thatincertainregions, anumberofNGOshaveeven Nothing inthelegislationforbidsNGOsfrom networking,andit others limited(bothdomesticandinternational)? 8 -Isthefreedom ofassociationstocooperate andnetwork with laws andregulations onthe matter. raising campaigns,aslongtheyabidebytheprovisions on Associations are allowedto usethefundsderivedfrom fund- may decidetogrant. and anyfundsthatthecentral,regional ormunicipalgovernments subscription dues,incomederivedfrom itsactivities,donations Article 26statesthattheresources ofanassociationcomprise funds otherthanmembershipdues. The Lawn°90-31(1990)allowsnowNGOstoownassetsand receive andownproperty andfunds?How? 1 -Are there anylimitationontherightsofassociationsto AND TRANSPARENCY CONTROL AUTHORITY, GOVERNANCE FUNDING ANDTAXATION Part IVandV 25

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 26 stated objectivesoftheassociation. involved andshowthatthesefundswillbeusedtopursuethe supplyinformationonthedonorsandamounts government, organizations mustobtainpriorauthorizationfrom the Associations thatwishtoreceive donationsfrom foreign 3 -Are there specifi (Article 47). supply suchinformationispunishablebyafi ne of2,000dinars generally, ontheirfi nancial situation(Article18).Refusalto information onthesource oftheirfi nancial resources and, Finally, associationsmustregularly provide theauthoritieswith those specifi ed inthestatutes. of theassociationfortheirownendsorotherthan Article 46provides forjailpenaltiesthosewhousetheassets n° 90-31). enumerated intheirstatedobjective(Article30and31ofLaw received fromforanyotherusesthanthose thegovernment permitted, unlessspecifi cally authorized,tousethefundsthey Associations recognized asbeinginthepublicinterest are not funds, otherthanby theconditionsoftheirgranting? 2 -Are there limitationsontherights ofassociationstousethe amount collectedtotheauthorities. Thus, aftereachfund-raisingcampaign,theymustdeclare the c limitationsonreceiving foreign funds? procedure toaccesssuchfunding. resources andthelackofpublicityknowledgeabout However, thissource offundingisquitelimitedduetolack (central,departmental,municipal). levels ofgovernment Associations mayreceive fi nancial assistancefrom thevarious these processes prone todiscrimination? 5 -Are publicfundsmadeavailable toassociations? How?Are other thatthosesetforthintheirstatues. Associations are notallowedtodrawanincomefrom activities 4 -Howeffectively are theselimitationsonfundingenforced? RECOMMENDATIONS 1 submitted byCFDAand FIDHatthetimeofexamination theperiodicalreportof Algeria inGeneva. 1 • • • 3. With regardtothe climaterequiredforthesustainabledevelopmentofcivilsociety • • Control authority, GovernanceandTransparency • • • • • • • • • • Organization andOperation • • Dissolution andSuspension - - - - • ReformLawNo90-31of1990onassociationsand,inparticular: Formation andIncorporation 2. With regardtothelawsandpracticespertainingassociationscivilsocietyorganizations • • • 1. With regardtothepolitical,democraticandhumanrightssituation THE ALGERIANGOVERNMENTISCALLEDUPONTO: Funding andTaxation These recommendations havebeendraftedonthebasisof reporton Algeria writtenunderthe aegisoftheEMHRNandalte Prefectures, thatareoftenremote; Allow thedepositofstatutesanassociationatseatsub-Prefecture,andnotonly the goodfaithoffounders; Issue immediatelyandautomatically, andnotafter60daysasisnowprovidebylaw, theregistrationreceipt,thusassuming conformity witharticle7ofLawNo90-31; Subject theformationofassociationstodeclarationsystemratherthanpriorcontrolnowinplace, association byreducingtheexistingrestrictiveformalities; Ease theformalitiesofincorporationsetforthinarticles9and23soastofacilitateeffectiveexercisefreedom Guarantee toallcitizenseffectiveaccessjusticeandtherightafairtrialbeforeanindependentimpartialtribuna on policiesofpublicinterest. Ensure, bywayofanadequateconsultationmechanism,theparticipation ofassociationstothedecision-makingprocess abusive interpretationoftherestrictionsonfreedomassociation; Rescind article46oftheimplementationorderCharterfor Peace andNationalReconciliationthatallowforan commitments ofAlgeria; Respect, dejureandfacto,thefreedomsofexpression,assembly, ofassociation,inconformitywiththeinternational copyright orcustomcontrolsofpublicationsthatarenotprohibited, in thecourseofregularproceedings. Eliminate penalsanctionsandtheconfi scation ofpublicationsincaseadisagreementregardingtheregistration jurisdictions pertainingtorestrictionsagainstthebasicrightsofmembers ofassociationsandhumanrightsdefenders; Guarantee aneffectiveremedyinareasonableperiodcaseofproceedings forabuseofpowerbeforeadministrative there isnoobstaclesinthepaymenttobenefi ciaries; the EU-AlgeriaassociationagreementandnationalactionplanofEuropeanNeighbourhoodPolicy(ENP)that Ensure thatthefi nancing ofthesupportprogramsEuropeanUnionisobtainedbyassociationsinconformitywith Adopt alawthatwillprovideforthetransparentandequitabledistributionofpublicfunds; order toeliminateanyconfusionwiththefi nancing ofassociations; Modify theprovisionsoflawDecember10,2003pertainingtofi ght againstterrorismandmoneylaunderingin the interior, asitisnowprovidedbyarticle28aofLaw90-31; Allow theacquisitionofforeigndonationswithoutsubjectingsuchtoexclusiveevaluationminister the administrativeauthority; authorizing associationstoresortfreelydonations(publicorprivate)inatransparentmannerandbysimplyinforming Abolish restrictionslimitingthefi nancing ofassociations,inparticularbyeliminatingmembershipfeeceilingsand outtheiractivities; to carry Lift allrestrictionsagainstassociationspertainingtotherentalofoffi ces, freedomofassemblyandthesecuringfunding usedtointimidate,associationsmembersandtheirpremises; Put anendtopolicesurveillance, toprohibittheholdingofameetingwithouthavingbeengivenmandatedoso foralegitimatecause; intervenes Create theoffenceofviolationrightassembly, applicableagainstanyindividualorgovernment offi cial who if thoseactivitiesdonotconformpreciselytoitsinitialpurpose; Eliminate fromarticle2ofLawNo90-311990allrestrictionspertainingtoactivitiescarriedoutbyanassociationeven established institutionalsystem”,suchanotionislackingprecisionandlegalrigour. tothe Rescind article5ofthelawthatallowsdissolutionanyassociationbasedonapurposeis“contrary law; activities whilewaitingforthereceiptthatauthoritieshavenotwantedtoissuewithin60-dayperiodprovidedby Amend article45ofLawNo90-311990onassociationssoastoeliminatejailtermsforfoundersthatpursuetheir restrictions onpeacefulactivitiesorfreedomofexpressionandassociationcivilsociety; Put anendtotheuseofprovisionslawonstateemergencyasabasisforcriminalizingorimposingarbitrary jurisprudence oftheUnitedNationsCommitteeonHumanRights; set forthintheotherinternationalinstrumentsonhumanrightsratifi ed byAlgeria,andtotakeintoaccounttherelevant Act inconformitywiththeprovisionsofInternationalCovenantonCivilandPoliticalRightsnormsprinciples associations thepossibilitiesforassociationtoinitiateandtakepartinlegalproceedings,particular by authorizingthe Widen possessing thelegalpersonalitytoassociatethemselvesacourtactionincasesrelatedtheirpurpose. rnative report l;

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Freedom of association in Egypt

Introduction

ENABLING ENVIRONMENT OF CIVIL management of poverty and rights promotion by the NGOs. As SOCIETY - THE GENERAL SETTING a consequence, the government initially tolerated the activities of some rights organisations - under the terms of the structural 1. Political, Democratic and Human Rights specifi c adjustment programme, creditor foreign governments as well as Contexts international institutions required that the Egyptian government reduce social spending and suggested that social assistance The activities of Egyptian organisations are governed both by be shifted to NGOs - even though their room for manoeuvre legislation adopted during the Nasser regime and by the state was subsequently reduced because their work was deemed to of emergency, which has been extended repeatedly since the impinge upon the prerogatives of the state. This policy enabled assassination of President Sadat in 1981. As early as 1945, Law the government to reclaim a portion of foreign public fi nancial No. 49 made it mandatory for the establishment of organisations assistance through the NGOs while displaying its respect for the to be approved by the Ministry of Social Affairs. Law No. 384 of principle of ‘good governance’ imposed by its foreign partners. 1956 gave the ministry the right to abolish them. Law No. 32 of This relatively favourable environment made it possible for 1964 placed associations under the direct control of the Social numerous human rights NGOs to be established 1. Affairs Ministry, a situation that was maintained under Law No. 153 of 1999 and under Law No. 84 of 2002. Since 2005, control In 2002, the Egyptian Parliament adopted Law No. 84, which has been assumed by the Ministry of Social Solidarity. maintained and strengthened the restrictive character of provisions in laws previously adopted in 1964 and 1999 with Until the early 1980s, all Egyptian institutions, both public regard to the rights of associations. In particular, Law No. 84 and private, were supposed to devote themselves to the forced all human rights NGOs to accept the conditions set implementation of national planning goals. Thus associations by the Ministry of Social Affairs and later the Ministry of Social were appendages of the Ministry of Social Affairs and of the Solidarity, and to be subjected to the formal control of those government party, and they helped the government to achieve ministries and of the security services. its social objectives, which were intended to foster social cohesion while promoting the single party in power. As a trade- 2. Legislation off, organisational leaders were elected with the support of the party in power or co-opted to well-paid or rewarding positions Egypt ratifi ed the International Covenant on Civil and Political on municipal bodies, in the trade unions, in Parliament or on Rights in 1982. The Constitutional High Court stated in 2000 corporate boards. that the right to form associations was one of the essential freedoms guaranteed by the Constitution. In the 1970s and 1980s, President Sadat, and after him President Mubarak, allowed the development of service organisations The government used Law No. 153 of 1999 and Law No. 84 of tied to mosques and churches. In addition to their social work, 2002 to impose a series of requirements, supported by penalties, the Muslim Brotherhood, other Muslim organisations and the aimed at forcing human rights NGOs to submit to its control. churches have used associations of this type to expand or As a result, several rights organisations decided to register as strengthen their infl uence. corporations in order to circumvent the ministry’s refusal to grant them the status of an association. It should be pointed out The structural adjustment policy implemented by the government that the steps taken against a number of organisations clearly during the 1990s included a component focusing on the contravene the recommendations made by the Arab League on

1 Human rights organisations in Egypt include the following: the Cairo Institute for Human Rights Studies, the Association for Human Rights Legal Aid (AHRLA), the El Nadim Center for the Psychological Rehabilitation of Victims of Violence and the Egyptian Organization for Human Rights.

28 - - - associations are asfollows: focus on‘development’ingeneral.Themostcommontypesof in particularhealthandeducation,about20percent Nearly 75percent ofthemare activeinthefield ofsocialservices, Today, thenumberofregistered associationsiscloseto22,000. choice oflegalstructure. their goals,thepresence ofcertainfoundingmembersorthe because theministryorsecurityserviceswere opposedto organisations seekingtoberegistered havebeenrejected for registration. Inaddition,alargenumberofapplicationsfrom using funds,prohibited someactivitiesanddeniedapplications the securityserviceshaveincreased restrictions onraisingand legislation onassociationsandfoundations,theministry In thecaseoforganisationsdulyincorporatedunder members anddissolveitsboard ofdirectors. security servicescanalsodismissanorganisation’s directors or for permissiontopursuecertainactivities.Theministryandthe some individualsasnewmembersoremployeesinexchange the securityserviceshaveoccasionallyforced themtoaccept even denyitaltogether. According tomembersofseveralNGOs, activity, theministrymaydelayauthorisationforseveralmonthsor wishes toprevent anorganisationcarryingoutcertaintypesof publications andthechoiceofpublishers,etc.Forexample,ifit of cheques,tripsoutsidethecountry, invitationstoforeigners, things asmeetings,newactivities,expenditures, thecashing powers. Itmayrequire themtoseekpriorauthorisationforsuch The ministryinchargeofassociationspossessesverybroad region (atameetingheldinCairo on27-28June2007). legislative reforms favouringfreedom ofassociationintheArab advocacy organisations fi eld ofactivityoverlapsinpartwiththat mobilisation and President’s offi ce orotherstateinstitutions.Intheory, their which arebodiesunderthedirect government control ofthe organisationsand‘specialisednationalboards’,Governmental political involvement. advocacy againstviolenceandthedevelopmentofsocial of thejudiciary, fi ghting againstdiscriminationofeverytype, training, promoting democracy, protecting the independence areas asmonitoringrights violations, rightseducationand agnostics, homosexuals,etc.),buttheyare alsoactiveinsuch women, children, prisoners,slumdwellers,religious minorities, of legalaidprovided tospecifi c groups (workers,farmers, etc. Themainactivityoftheseorganisationsisintheform equality, protection oftheenvironment, consumerrights, Rights NGOs(mobilisationoradvocacy):humanrights,gender health andeducationservices. individuals (orphans,disabledpeople,etc.)andaboveall disadvantaged persons,provision ofservicestovulnerable Social assistanceorganisations:toeconomically association, bywithholdingapproval ofthemembersitsboard and registration documents. in Helwanrefused toprovide alegalreceipt foritsbankdeposit the listofitsactivitiesbutafewdayslater, thelocalauthorities Trade UnionsandWorkers Services 29 April2007,theMinistryofSolidaritygranted occasionally displaycontradictoryattitudesinthatregard: on restricted topoliticalparties ortradeunions.Theauthorities from anyinvolvementinpoliticalorunionactivitiesthatare are militaryinnature. Inaddition,thelawprohibits organisations public morality, thatdiscriminateagainstcertaincitizensor activities thatruncountertonationalunity, lawandorder or Article 11ofthelawforbidsassociationsfrom conducting security, religion, politics)? 3 -Onwhatgrounds canregistration berejected (e.g. race, associations beapproved bytheMinistryofSocialAffairs. Law No.84of2002requires thattheestablishmentof of theapplication,byrejecting the (by notproviding thereceipt supportingthedateofsubmission decision. Itcanalsodelayitsresponse through various means the formationofanassociationbyasimpleadministrative Social Solidarityopposesitexpressly. Theministrycanprevent the dateofsubmissionapplication,unlessMinistry statute istobepublishedintheOffi cialGazettewithin60daysof In accordance witharticle6 ofLawNo.84,theassociation’s member. age, nationality, occupationandresidence ofeveryfounding of theassociation,aswellgivennameandsurname, activities, geographicscope,address andphysicalresources associations. Thestatementofregistration specifi es thename, body, anumberthatactsasanobstacletotheformationof non-profi t group ofatleast9‘naturalpersonorcorporate as wellitsfi eld ofactivity. Anassociationisdefi ned asa thecreationgoverning andoperationofeachtypeassociation Law No.84of2002containsastrictdefi nition oftheconditions delays, cost, numberoffoundingmembers)? 4 -Howeasyordiffi information/notifi 2 -Istheregistration systembased onlicensingorsimple simple fi nes toimprisonment. non-declared organisationsmayincurpenaltiesrangingfrom Non-declared associationsare notallowed.Themembersof associations? 1 -Doesthesystemallowfornon-declared orunincorporated FORMATION ANDINCORPORATION Part I: cation? cult isittoregister anassociation(e.g. (CTUWS)permissiontofax

name orthegoalsof Centre for 29

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 30 3 2 the ministry was reconstituted as the Ministry ofSocialSolidarity. wasreconstitutedastheMinistry the ministry ministry’s decisionbefore theadministrativetribunal,butonlyafter a priorjudicialdecision.Theassociationmaychallengethe Affairs todissolveanassociation andseizeitsproperties without Article 42ofLawNo.842002authorisestheMinistrySocial DISSOLUTION ANDSUSPENSION Part II: but doesgivethemgreater freedom ofaction. tax benefi ts enjoyedbyassociationsunderthe1964legislation provisions oftheCivilCode,astatusthatdoesnotconfer registration asnon-profi t corporations,inaccordance withthe most ofthoseapplications.Othershaveresorted tojudicial before undertakingeachactivity-buttheministryhasdenied provide informationortheobligationtosecure priorauthorisation of securityservicesinthechoicemembers,obligationto as foundations-astatusthatdoesnotallowfortheinterference Forexample,somehaveappliedtoberegisteredalternatives. freely, humanrightsactivistshavesometimesoptedforother In order toenjoyjuridicalpersonalityandconducttheiractivities company, atrust, aWakf)? and incorporate anassociationisdenied(e.g. incorporate asa 7 -Are there otherviablealternatives iftherighttofreely form personality andtherightofaccesstocourts. Once ithasbeenregistered, anassociationisgrantedjuridical legal entity? 6 -Doesregistration automaticallyentailobtainingseparate representatives oftheMinistrySocialAffairs/Social Solidarity decree oftheMinisterJustice,acommitteecomprised of 2002providesby fortheestablishmentineachgovernorate, days. To allowforanout-of-courtsettlement,article7ofLaw84 may lodgeacomplaintwiththeadministrativetribunalwithin60 In theeventthatregistration isformallydenied,theorganisation cases where registration isdeniedordelayed? 5 -Are there effective remedies (e.g. judicial, administrative) in days ineachcase. the associationtorenew itsapplicationandtowaitanother60 of directors, itsfoundingmembersorleaders),thusforcing was fi nally registered onlyin2003 the Supreme Courtin1992lasteduntil2000.Theorganisation launched bytheEgyptianOrganizationforHumanRightsbefore followed, maylastseveralyears.Forexample,theproceedings Judicial appeals,anavenuethatmostorganisationshave is notoriouslyineffective. conclusions are purely advisoryandnon-binding.Thisprocess and ofregional alliancesoforganisations.Thecommittee’s Seehttp://www.fi dh.org/spip.php?article201 responsibleforassociations,The ministry establishedthroughLawNo. 32of1964, ofSocial was theMinistry Affairs untilit

3 . 2

or ofviolationstheirpoliticalsocialrights. support ofpeoplewhoare thevictimsofcollectiveaggression may notengageinopinioncampaigns,lobbyingoractions speciﬁc realm ofpoliticalandtradeunionactivities,organisations carrying outanypolitical,tradeunionormilitaryactivity. Inthe Article 11ofLawNo.842002prohibits associationsfrom own object? amend theirownstatutesandby-laws andtodeterminetheir 1 -Whatistheextentoffreedom ofmemberstodraft and ORGANISATION ANDOPERATION Part III: networks. contactsandbelongtointernational international which, contrarytoorganisationswithsocialpurposes,have These provisions are targetedespeciallyathumanrightsNGOs, activities are prohibited underarticle11ofLawNo.84. organisation withoutinformingtheministry;association’s Solidarity (article17);theassociationjoinsaforeign clubor without theauthorisationofMinistrySocialAffairs/Social a foreign organisationorsendsitsfundstoaforeign organisation for whichitwasestablished;theassociationreceives fundsfrom 42): theassociationusesitsfundsforpurposesotherthanthose ministry’s decisionmustbebasedonthefollowinggrounds (article the dissolutionandseizure havecomeintoeffectThe (article6). association foroneyearorlonger (article12).Generallyspeaking, by theassociation members. TheMinistryofSocialSolidaritymay, ‘ the organisationandlaunchingoflegalproceedings againstits the association.Aviolationoflawmayleadtoabolition funding andfundallocation,correspondence andproperties of such areas asthename,members, purposes,activities,bylaws, life ofanassociation.Itauthorisestheministrytointervenein Law No.84reafﬁ rms the government’s righttointerfere inthe ‘supervisors’? attendance ofmeetings(Board, General assemblies)by 3 -Isthere any interference inthecorporate bodies-e.g. founding members. Shukr Allah)andsecretary (AzzaKâmil)were excluded from its the application,provided thattheCentre’s president (Hala foundation. TheHelwanauthoritiesagreed toproceed with Development Centre inHelwanappliedforregistration asa and request changes.On1 February 2003,theBashairSocial In suchcases,itmustinformthefoundersofitsreservations foundation, ortothepresence ofcertainfoundingmembers. The ministrymayobjecttothebylawsofanassociationor leave associations? 2 -Howstrictisthelevel offreedom ofmemberstoadhere toor

(Are suchdocumentsimposed?towhatextent?) ’, second a government representative’, secondagovernment tothe s offi cialdissolutionin2004. Two yearslater, when requested restricted topoliticalpartiesortradeunions. organisation maynotengageinpoliticalortradeunionactivities against certaincitizensorare ofamilitarynature. Inaddition,an unity, lawandorder orpublicmorality, callfordiscrimination associations from carryingoutactivitiesthatthreaten national As already mentioned,article11ofLawNo.842002prohibits decide onprojects andactivities?Ifso, howandwhy? 5 -Isthere anyinterference inthefreedom ofassociationsto women inanassociation’s activities. there are norestrictions specifi cally aimedattheinvolvementof Beyond thediscriminationpresent inEgyptiansocietygeneral, positions (e.g. board ofdirectors)? limiting orbanningtheparticipationofwomen inanassociation’s 4 -Are there anyrestrictions (dejure ordefacto)promoting, facilitate theirrelations withthegovernment servants intheiractivitiesandsometimespaythemorder to organisations withsocialordevelopmentpurposesincludecivil promoting therightsoftrade unionandsocialrightsofworkers, Unions andWorkers Services (CTWUS),anorganisation services mayproceed. Forexample, aftertheCentre forTrade whose theme,formatandvenueare approved bythesecurity to ‘non-militants’.Inpractice,onlythosemeetingsandactivities public venue);theymayneverbeheldinaplacethatisaccessible offi ces (whichare tolerated becausetheyare notconsidered a conference andtakeplace at ahotelorintheorganisation’s devoted tohumanrightsmustgenerallybeintheformofa the meetingistobeheldinapoorneighbourhood.Meetings especiallywhen rights NGOs,seenashostiletothegovernment, In mostcases,thesecurityservicesdenypermissiontohuman than fi ve peoplewithoutpermissionfrom thesecurityservices. The emergencylegislationprohibits publicgatheringsofmore international travel) restricted inanyway? private and publicmeetings, ortomove freely (including 6 -Istheassociation’s righttofreely assemble, toorganize nomination ofcertainindividuals(article34). mayopposethe general assemblyisheldandthegovernment must beforwarded60daysbefore tothegovernment voting days (article23).Thelistofcandidatestotheboard ofdirectors within 30days(article38)anddemanditswithdrawal10 raise objectionstoanydecisionsmadeatadeliberativemeeting of directors mustbeforwardedwhichmay tothegovernment, association’s generalassemblyandofthemeetingsitsboard informal interference bythesecurityservices.Theminutesof civil servantsamongtheiremployees,buttheyfaceongoing, party inpower. HumanrightsNGOsgenerallydonotinclude were orbythe establishedorare supportedbythegovernment seconded to22,000associations,alargenumberofwhich Today, nearly18,000civilservantsare believedtohavebeen 5 4 Seehttp://www.fi dh.org/spip.php?article4794. Amani KandilandSarahBen Nefi ssa, Civil Associations inEgypt 4 . (text in Arabic); Cairo: Al-Ahram CenterforPoliticalandStrategic Studies, 1995. internal investigation internal end, allegationsofcorruptionwere confi rmed bythecentre’s and fi nancial irregularities committedbyayouthcentre. Inthe magazine) theresults ofaninvestigationintotheadministrative imprisonment forhavingpublishedinKalamSinai’ia(aCTUWS Abbas andMohamedHelmywere sentencedtooneyear’s ministry andthesecurityservices.On11October2007,Kamal buttheyare subjecttoongoingmonitoringbythe the internet Council forthePress. NGOsmaypublishinthemediaoron The publicationofanyperiodicalmustbeauthorisedbytheHigh workers orslumdwellers)riskbeingarrested andprosecuted. the policeorarmyincontextofexpulsions(offarmers, document withphotosortestimoniesabusescommittedby orphotographerswhoattemptto Associations, journalists developing internetsites)? to freely communicate(e.g. accesstomedia, publishingand 7 -Are associationssubjecttospecifi that context, the government andthemostactiveorganisations that context,thegovernment consultations onreforming the legislationonassociations.Within respondedto whichthegovernment byinitiatingaprocess of launched acampaigninfavouroftherightsassociations, recognised politicalparties. In 1998,anumberoftheseNGOs signifi cant andeffective actorsinpubliclifethanmanyofthe Egyptian humanrightsNGOscanbeconsidered asmore Despite theadministrativeproblems theycontinuetoface, nature andlevel ofsuchconsultations? participation indecidingonpublicinterest issues?Whatisthe 9 -Istheparticipationofassociationssoughtforopinionor prohibition onmembership. of theassociation,confi scation ofitsproperty andalifetime and 10,000Egyptianpounds.Itmayalsoleadtotheclosure between three monthsandoneyearfi nes between1,000 compliance withtheseprovisions entailsjailsentencesof the associationwithotherassociationsororganisations.Non- ‘ to report ontripsabroad, article76provides penaltiesfor organisations. Whilethelawdoesnotmakeitmandatory on thefreedom ofassociationstocooperatewithforeign Articles 16and17ofLawNo.842002imposerestrictions others (atbothdomesticandinternationallevels) limited? 8 -Isthefreedom ofassociationstocooperate andnetwork with Muslim Brotherhood are stillunderthesameprohibition. leaving theterritoryuntilmid-1990s,andmembersof In similaractions,leftistpoliticalactivistswere prevented from and Helwan)wereinApril2007. dissolvedbythegovernment accusation, three ofitslocalbranches(atMahalla,Naj-Hamadi took placeinDecember2006andJanuary2007.Followingthis was accusedofinstigatingstrikesanddemonstrationsthat undeclared activities 5 ’ andfortheunauthorisedaffi liation of . c limitationsontheirright 31

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 32 6 two yearsbefore rendering adecision.Asresult, numerous 60 daysafterthesubmission,theysometimestakealmost law stipulatesthattheauthoritiesmustrespond nolaterthan of SocialAffairs. Theprocess isoftenlengthy:althoughthe foreign foundationsinEgypt mustbesubmittedtotheMinistry organisations. Applicationstoreceive fundsfrom abroad orfrom Most organisationscanonlyoperatewiththesupportofforeign 3 -Are there speciﬁ cases ofmisappropriation of publicfunds. Court ofAuditsandtheirmembersare liabletoimprisonmentin public property. Associationsare subjected tothecontrol ofthe private sources orfrom localorforeign sources, isconsidered All fundingreceived byanorganisation, whetherfrom publicor the funds, otherthanby theconditionsoftheirgranting? 2 -Are there anylimitationsontherightofassociationstouse of SocialAffairs. the solicitationofdonationsisstrictlycontrolled bytheMinistry an opinioncampaign,etc.)are virtuallyprohibited. Inall cases, campaigns aimedatsupportingaprotest movement(astrike, opposition (communists,Islamistsandothers).Fund-raising activities byorganisationsitconsidersasbeingpartofthe alsoprohibitspublic atlarge.Thegovernment fund-raising and largeinstitutions,butstrictlyforbidssolicitationsfrom the toleratestheraisingoffundsfromgovernment wealthycitizens relations withtheauthoritiesorare simplyuninterested. The this mighthavepoliticalrepercussions, wishtomaintain good from Egyptianbusinesspeoplebecausethelattereitherfear of thebeneﬁ ciary. HumanrightsNGOsseldomreceive funding on thesource, purposeanduseofthefundsonnature advice ofthesecurityservices,whichprovide itwithinformation approval bytheMinistryofSocialAffairs. Theministryseeksthe receive donationsfrom naturalorjuristicpersonsfollowing Under article17ofLawNo.842002,anassociationmay receive andownproperty andfunds?How? 1 -Are there anylimitationonthe rightsofassociationsto FUNDING ANDTAXATION Part IV: term bytheUnitedNations). for HumanRights(anationalinstitutioninthesensegiventothat rather thanassociationswere includedintheNationalCouncil breach ofthelawbecausetheywere registered ascorporations notoriety. In2004,forexample,organisationsthatwere in towards anumberoforganisationsthathasgainedinternational 2007, theEgyptianauthoritiesadoptedanambivalentattitude tensions andhardening ofpositionsthattookplacein2006and submitted theirownproposals. Aswell,before thepolitical Seehttp://www.amnestyusa.org/document.php?lang=e&id=ENGMDE120292007.

c limitationsonreceiving foreign funds? and bytheUNHumanRightsCommitteeinNovember2006 Committee onEconomic,SocialandCulturalRightsin1999 from outsidesources inEgypthasbeencriticisedbythe UN thesolicitationoffunding pointing outthattherulesgoverning and 2000.Both,however, were eventuallyreleased. Itisworth Khaldun Centre, were prosecuted onthesamegrounds in1998 for HumanRights,andSaadEddinIbrahim,director oftheIbn Abu Seada,generalsecretary oftheEgyptianOrganization which isbynomeansanisolatedcase.Forexample,Hafez thatpoliticalmotivationsareconcern behindthisdecision, Affairs, whichsystematicallyrejected theapplication.There is requirements inseekingpermissionfrom theMinistryofSocial taken despitethefactthatorganisationfollowedlegal funding from aboard withoutauthorisation.Thisactionwas of torture inEgyptianpolicestations,becauseithadreceived for HumanRightsLegalAid ofCairo2007, thegovernor province abolishedthe detailed dataontheresources oforganisations.On5September these nit-pickingcontrols, theministrydoesnotprovide regular, even lesserexpensesare submittedtotheministry. Despite be approved bytheMinistryofSocialSolidarity, butinpractice expenses exceeding1,000Egyptianpounds(about pay theiremployeesormeetcurrent expenditures. Budgetary organisations are totallyparalysedbecausetheyare unableto projects cannotbeimplementedandtheactivitiesofsome which itcanseconditsownemployees. a securitypointofview, donotpresent any‘politicalrisk’andto onlygrantsfundingtoorganisationsthat,fromThe government these processes prone todiscrimination? 6 -Are publicfundsmadeavailable toassociations?How?Are consumes. from aportionofthecosts of thepublicgoodsandservicesit of theprimeminister, toexemptanassociationfrom taxesand Article 13ofLawNo.842002makesitpossible,bydecree conditions? 5 -Doassociationsbenefi the reopening ofthecentre on30March. cassation thatdeclared theminnocenton18March 2003 and from theirarrest on30June2000totherulingbycourtof by theemployeesofIbnKhaldunCentrre lastedthree years, ‘buy thevotesofwomen’inelections.Thenightmare suffered the Centre wasaccusedofusingfundsobtainedfrom abroad to years’ imprisonmentwithforced labour. Intheseproceedings, Khaldun Centre were sentencedtobetweenoneand seven Saad al-DinIbrahim,asdirector, and27employeesoftheIbn The lawisstrictlyenforced. Itwasonthebasisofthislawthat 4 -Howeffectively are theselimitationsonfundingenforced? t from taxbenefi (AHRLA),whichcondemnsacts ts? Underwhat € Association 133) must 6 . associations oninotherlaws. organisation tocriminalsanctionssetoutinthelegislationon available tothepublic.Penaltiesrangefrom theabolitionof ministry andthusdonothavetomaketheirfi nancial accounts Social Solidarity. Intheory, theyare accountableonlytothe activities, associationsformallycomeundertheMinistryof Although varioussecurityagenciesinterfere withalltheir measures are appliedincasesofviolations? 3 -Whatpenalties(e.g. criminal, fi technical books,magazinesandjournals. send fundsabroad, buttheyare allowedtosendscientifi c and the approval oftheministry. Egyptianorganisationsmaynot Egypt, offrom anEgyptianoraforeigner outsideEgypt,without funds from aforeign organisationorfrom itsrepresentative in Article 17ofLawNo.84prohibits associationsfrom receiving to thepublic? 2 -Are accountsandotherinformationtransparently available responsible fortheassociations. sources, are subjecttoapproval andmonitoringbytheministry The raisinganduseoffunds,whetherfrom domesticorforeign as intermediariesbetweenadministrativebodiesandthepeople. supplement inparttheshortcomingsofstateservicesandact In anumberofareas, socialanddevelopmentorganisations the Declaration)? authorities withtheprinciplesoffreedom (checkprinciple16of security apparatus)? Howconsistentare theactivitiesofthese associations (e.g. courts, ministries, independentbodies, and 1 -Whatare thesupervisoryauthoritiesthatoversee AND TRANSPARENCY CONTROL AUTHORITY, GOVERNANCE Part V:

nes, etc)andharassment 33

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 34 Freedom of Association andthe ‘Guidelines forlegislation oncivilsocietyorganisations’. 1 • • • • 1. With regardtothepolitical,democraticandhumanrightssituation THE EGYPTIANGOVERNMENTISCALLEDUPONTO: • • • • • 3. With regardtothe climaterequiredforthesustainabledevelopmentofcivilsociety • • • Funding andTaxation • • • • • • Organisation andOperation • • • Dissolution andSuspension • • • • • • • • Formation andIncorporation 2. With regardtothelawsandpracticespertainingassociationscivilsocietyorganisations The meetingwas organisedbythe Arab Leagueinpartnership withthe Arab NetworkofCivilOrganisations onthebasisof A to freedomoforganisationintheArabworld Take accountoftherecommendationsconferenceheldatCairoon27and28June2007legislativereformsrelated and associationofcivilsociety; restrictionsonthepeacefulactivitiesandfreedomofexpressio legislation asabasisforcriminalisingorimposingarbitrary Put anendtotheuseofprovisionslawsonstateemergencyandagainstterrorism,allothersecurity-related expression, ofassemblyandassociation; Repeal theemergencylegislationusedtojustifypracticesandexcessesthatdenyfreedoms,inparticularfreedomof jurisprudence oftheUnitedNationsCommitteeonHumanRights; set forthintheotherinternationalinstrumentsonhumanrightsratifi ed byEgypt,andtotakeintoaccounttherelevant Act inconformitywiththeprovisionsofInternationalCovenantonCivilandPoliticalRightsnormsprinciples ‘report onviolations’). 2007 by34NGOs(asafollow-up tothefi rst collectivereporton‘administrative andsecurityharassment’-theso-called Promote andcontinuethe‘campaign ofnon-governmentalorganisationsforfreedomorganisation’ launched on13May mechanism, thattheywillcontribute todecision-makingrelatedpublicpolicy; Adopt agenuinelyparticipativeapproach towardscivilsocietyorganisationsandensure,throughanadequate consultative andtheAssociation forHumanRightsLegalAid; Services administrativemeasures,suchasthosetakenagainsttheCentreforTradeIn sodoing,rescindarbitrary UnionandWorkers’ of organisationsseenashostiletothegovernment; Put anendtoharassmentmeasures,includingjudicialtaken againsthumanrightsdefendersandthemembers activities; atallstagesofthelifeassociations andinallt andinterferenceofthesecurityservices Put anendtotheintervention of 60daysprovidedforinarticle17LawNo.842002isrespected inpractice. Put anendtoalldelayingandabusivepracticesoftheauthorities requirethem,inparticular, toensurethatthedeadlin responsibleforsecuringsuchfunding; the obligationtoseekpriorauthorisationbyministry Lift allrestrictionsonobtainingfundingfromforeignsourcesand,inparticular, amendLawNo.84of2002soastoeliminate wish todososolicitdonationsfromthepublicatlarge; Lift allexistingrestrictionsonfund-raisingandthesolicitationofdonations,inparticularbyallowingassociation obligation toseekpriorauthorisation. Lift allrestrictionsoncooperationoraffi liation withforeignassociationsandorganisations,inparticularbyabolishingth Guarantee theaccessofassociationstopublicmedia(pressagencies,radio,television,newspapers,etc.); Abolish allrestrictionslimitingtheaccessofassociationsortheirmemberstotelephone,faxinternetservices; Abolish theobligationtoseekpriorauthorisationforanypublicgatheringofmorethanfi ve people; bodies oftheassociations; responsibletoopposeordemandchangesindecisions madelegallybythegoverning Rescind thepossibilityforministry 84 of2002; toassociations,inparticularbysimplyrepealingarticle12ofLawNo. Put anendtothepracticeofsecondingcivilservants fi nal judicialdispositionofthemeasure. Provide thatanassociationwhichistheobjectofabolitionorsuspensionmeasuremaycontinueitsactivitiesuntil Amend LawNo.84of2002soastogivethecourtsexclusivejurisdictioninabolishingorsuspendinganassociation; an organisation; Amend article42ofLawNo.842002soastoreducethenumberandclarifyreasonsforabolishingorsuspending effective accesstojusticewithinareasonableperiod. responsiblehavean Ensure thatorganisationschallengingtherejectionofanapplicationforregistrationbyministry declaration; Allow theregistrationofchangesinassociation’s statutesorinitsgoverningbodiestobemadethroughasimple decision besupportedbypreciseconsiderationsinordereffectivelytomakeitpossiblelodgeanappeal; Generally, responsiblerejectsanassociation’s requirethat,whentheministry applicationforregistration,thereasonst that thedeadlineof60daysprovidedforinarticle6LawNo.842002isrespectedpractice; Put anendtotheabusiveanddelayingpracticesofauthoritieswithrespectapplicationsforregistrationensure Amend LawNo.84of2002soastoreducetwothenumberfoundingmembersrequiredcreateanassociation; of 2002,whichareusedtoprohibitcertainorganisations; with relatedjurisprudence,totheconceptsof‘lawandorder’‘publicmorality’asdiscussedinarticle11LawNo.84 Apply arestrictiveinterpretation,inaccordancewitharticle22oftheInternationalCovenantonCivilandPoliticalRights Authorise thecreationoforganisationsworkingforinterestsworkers; of ajudicialdecision,toallowtheassociationbeestablished; responsiblefromrefusing,onthebasis it wouldnotsuspendtheactivitiesofassociation,preventministry Abolish theprocedureofpriorapprovalforregistrationassociationsandimplementdeclarativeregimewhich,while 1 . rab Initiativeforthe s that heir nd he n e e

RECOMMENDATIONS Freedom of association in Israel

Introduction

ENABLING ENVIRONMENT OF CIVIL 13.3% of the country’s GDP and employs over a tenth of the SOCIETY - “THE GENERAL SETTING” nation’s workforce. According to the Israeli Center for Third Sector Research, in the Hopkins Project’s comparisons among 1 - Political, democratic and Human Rights specifi c 22 countries, Israel ranked fourth (behind Holland, Ireland and contexts: Belgium) in the relative size of its Third Sector within the larger economy. Israel’s Third Sector works predominantly in fi ve fi elds: There are many limitations on the exercise of the right of freedom religion, culture and education, education and research, and of association mostly involving discrimination between Arab and welfare and philanthropy. The share of organizations involved Jewish groups in Israel. The Law of Associations - 1980, the main in these areas amounted to 83% in 2005. Public funding is the statute that governs the establishment and functioning of NGOs Third Sector’s main revenue source (52%) in 2002.2 There are in Israel and places limits on the exercise of the right of freedom no GONGOS in Israel. of association, for example, gives powers to the Registrar of Associations, which today belongs to the Ministry of Justice, 3 - Legislation to intervene directly and indirectly in some circumstances in the activities of NGOs. In addition, since 1948, Israel has been in a A - International standards declared “state of emergency”, which gives the security bodies Israel is party to all of the major international human rights the power to use the Emergency (Defense) Regulations - 1945 conventions, which guarantee the right to freedom of association. in an arbitrary manner to limit the right of association in Israel. In particular, Israel ratifi ed the International Covenant on Civil While it is true that this power has been used rarely since the and Political Rights (ICCPR) in 1991, which by Article 22 1990s, it still exists and is used in a draconian manner, denying protects the right to freedom of association. The ICCPR has individuals and groups their rights to due process, fair hearing not been incorporated into Israeli domestic law, and is thus only and trial. Finally, Israel’s position and practice as an Occupying persuasive authority. Power has led to a wide number of violations of the right to freedom of association in the Occupied Palestinian Territories. B - Domestic law However, the question of occupation will only be dealt with in a. Constitutional provisions this chapter in so far as it had consequences for associations Israel lacks a formal written constitution or a bill of rights. Over inside Israel for example through the use of the Prevention of the years, the Knesset enacted a series of Basic Laws to Terrorism Ordinance - 1948 and Law for the Prohibition of Terror delineate the separation of powers. In 1992, the Knesset passed Funding - 2005. two important Basic Laws - The Basic Law: Human Dignity and Liberty 3 and The Basic Law: Freedom of Occupation 4 - which, 2 - Civil society landscape for the fi rst time, contain “constitution-like” protections for some civil liberties. However, these Basic Laws, considered a mini- Since the 1990s, the right of freedom of association in Israel has bill of rights by some Israeli legal scholars, do not enumerate gained strength. Altogether around 40,800 organizations were the rights of freedom of expression and the right of freedom registered in Israel between 1981 and 2005, 23,650 of which of association. Thus, Israel has no law that “constitutionally” are active.1 As of 2002, Israel’s Third Sector constitutes roughly guarantees the right of freedom of association.

1 ADALAH - The Legal Center for Arab Minority Rights in Israel, Arab Association for Human Rights (HRA), B’Tselem, Public Committee Against Torture in Israel (PCATI), ACRI, Physicians for Human Rights, Association for civil rights in Israel. 2 Ibid. The website of the Registrar of Associations does not provide any data of this type. See http://www.justice.gov.il/MOJHeb/RashamAmutot (Hebrew). 3 Available at: http://www.knesset.gov.il/laws/special/eng/basic3_eng.htm 4 Available at: http://www.knesset.gov.il/laws/special/eng/basic4_eng.htm

35 Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 36 and mustallowthecompanytoregister. 6 5 open abankaccountorusechecks inthenameofgroup. it cannotinitiatealawsuitinits name alone.Further, itcannot meaning thatitcannotbesuedincourtasanassociationand But anon-registered associationwillnothave“legalpersonality”, non-registered associationsmayconductactivitiesasagroup. as anassociationwithoutbeingregistered. Bothregistered and There isnoarticleinthelawwhich prohibits anygroup from acting associations? 1. Doesthesystemallowfornon-declared orunincorporated FORMATION ANDINCORPORATION Part I: case, the be limitedbyexpress legislativeauthorization;inthisspecifi c to freedom ofassociationisafundamentalrightwhichcanonly to refuse toregister thecompany. TheCourt ruledthattheright authority toconsidersecurityreasons asbasisforhisdecision the state” wasnotanexplicitlystatedpurposeinthelaw, andthus, this case,theSupreme Courtdecidedthatthe“securityof delivered in1953. of freedom ofexpression asafundamentalrightwasKol Ha’am, The landmarkcaseinIsraelilegalhistorywhichsetforththeright freedom ofexpression andassociationasfundamentalrights. The Supreme CourtofIsraelhasrecognized therights of d. Thejurisprudence types ofrestrictions. to practicetheirprofession. Thispaperwillfocusonthefi rst two that certainprofessionals belongtosuchanassociationinorder freedom toformprofessional associationsortherequirement The third typeinvolvesdirect orindirect restrictions onthe the lawtobeasecurityriskorconstituteterror organization). activity of“illegalassociations”(namelythosegroups deemedby Regulations -1945whichaimtoprevent theestablishmentor type ofrestrictions involvescriminallawsandtheEmergency NGOs, corporations,andcooperativeassociations.Thesecond is foundinstatutesthatregulate theformationandoperationof of statutorylawsrestrict theexercise ofthisright.Thefi rst type While freedom ofassociationisafundamentalright,three types the establishmentandfunctioningofNGOsinIsrael. The LawofAssociations1980isthemainstatutethatgoverns c. Nationallawonfreedom ofassociations binding, unlesstheyare incorporatedintodomesticlaw. Under Israelilaw, humanrightscovenantsare international not lawanddomestic b. Relationshipbetweeninternational permission toregister theircompany, “El-Ard Ltd”In1964. 1960, whentheyappliedtothe right offreedom ofassociationwasbrought byanArabgroup in H.C. 241/60, (HighCourt)H.C. 73/53, Registrar Registrar Kardosh v. The RegistrarofCompanies (forregistering acompany)doesnothavethe 5 exceededhispowerindenyingpermission Thefi rst casewhichrelated directly tothe Kol Ha’amLtd. v. MinisterofInterior Registrar ofCompaniestoobtain , 15P.D. 1151. , 7P.D. 871. 6 In existence ofIsrael registration canberejected iftheassociation:(1) Pursuant toArticle3oftheLawAssociations(1980), (e.g. race, security, religion, politics) 2. Whatare thebasesuponwhichregistration canberejected? association, andthenames,addresses andidentitynumbersofthe Registrar), statingthename,objectivesandaddressinIsraelof by thefounderstoRegistrarofAssociations(hereinafter: (a) fee isreasonable atNIS773 (US$185). procedural process ofregistering anassociation.Theapplication Article 2oftheLawAssociation1980discusses information/notifi 3. Istheregistration systembasedonLicensingorsimple a registeredassociationinIsrael; name is“ the public.Anassociationshallalsonotberegistered ifthe Registrar instances, especiallyinpoliticalcircumstances inwhichthe (art. 4-a).Article4(a)hasbeenusedbythe mislead ortooffendthepublicinterestfeelingsof Registration willberefused ifthechosennameis“ Article 4alsosetsrestrictions onthenameofanassociation. and (3) him atthisearlystageofestablishmenttheassociation. as nottodelaytheprocess ofregistration orcreate hostilitywith often donotinitiatelegalproceedings againstthe when hehasnolegalbasisonwhichtodoso.Thefounders convince thefounderstochangenameofassociation, consistently conformtoit.Inmanycases,the since theregistrationdidnotyetpass registered inIsraelanditsregistrationwascancelledtwoyears Registrar Despite theSupreme Court’s clearrulinginNasserv. The right oftheassociationtochooseitsname. the legitimizes Palestine.Inthiscase,theSupreme Courtoverturned the publicbygivingimpression thatIsraelrecognizes and on thegrounds thatusingthe name“Palestinian”mightmislead for HumanRights.”The association underthename,“TheIsraeli-PalestinianAssociation which aPalestinianandJewishgroup askedtoregister asan A landmarkSupreme Courtcaseinthisregard is the associationtochangeitsname. order, Generalofthestatemayaskcourttoorder theAttorney does notcomply“ “ registered inanameagainstwhatwasstated(a)or(b)above: which isintheprocessofregistration the Registrarmayorderittochangeitsname. “An applicationforregistrationofanassociationshallbesubmitted Registrar uses theassociationasacoverforillegalactivities statedthatthenameofassociationmightmislead ofAssociations,thepractice identical withorsimilartosuchanamemislead: ’s decisionrulingthatheviolatedthefundamental cation? ; (2) within areasonabletimefromthedateof negates thedemocraticcharacterofIsrael Registrar refused toregister thegroup (2) ” (4-c). ” (4-b).Ifanassociationwas an associationwhichwas ; and(3) ” Iftheassociation Registrar Registrar Registrar an association Registrar negates the Nasser doesnot inmany . triesto likely to , in so (1) ” ; decision. Inaddition,ifthe and thefoundersmayappealtoDistrictCourtagainstthis within 45days,legallyitwillbeseenasarefusal toregister beyond the45daydeadline.If the righttoappealthisdecisionwithin30days. of refusal toregister theassociationoritsname,theyalsohave set atimetable,inmanycasesthe requirement andsincetheLawofAssociations-1980does not in practice,fewindividualsare aware ofthisadministrative law Registrar within 45days.Therefore, theadministrativelawrequires the each administrativebodymustgivereasons foritsdecision Arrangements (DecisionsandExplanations)-1958statesthat to register. However, theLawforAmendingAdministrative after publicationintheoffi cial gazette. Articles7,8,and8(A)of The “legalpersonality”isnotobtainedbytheregistration but legal entity? 6. Doesregistration automaticallyentailobtainingseparate timetable bywhichthe 3 and4.TheLawofAssociations-1980doesnotsetfortha for registration exceptforreasons basedprimarilyon Articles Based onArticle5,the notifi cation thereofwasdelivered. section 4(b)maybeappealedasaforesaidwithin30daysafter refusal wasdeliveredtothem.ArequestbytheRegistrarunder may appealtotheDistrictCourtwithin30daysafternoticeof “ is denied, delayed (e.g. judicial, administrative?) 5. Are there effective remedies inthecaseswhere registration There are oftenlongdelaysinregistering associationsinIsrael. number ofincorporators) 4. Howeasyordiffi (a) or(b). he holdsthatispreventedfromdoingsobysections1,3or4 shall registertheassociationinRegisterofAssociations,unless registration undersection2hasbeensubmitted,theRegistrar According toarticle5LawofAssociations1980:“ mail atleast14daysbeforeitwassubmittedtohim.” changing oramendingwassenttoallofthefoundersbyregistered original application;unless,heisconvincedthattheapplicationfor above, ifitwassignedbythemajorityoffounders or amendmentsfortheapplicationaswasstatedinarticle(a) registered asanassociation,theRegistrarwillacceptanychanges (b) of theassociation.” as isrequestedandtheirwillingnesstobemembersoftheBoard by thefoundersstatingtheirwillingnesstofoundassociation founders. To thisapplicationwillbesubmittedanaffi davit signed If theRegistrarrefusestoregisteranassociation,founders “After submittingtheapplicationandaslongitwasnot toprovide hisreasons withinalimitedtime.However ” cult istheregistration: (e.g. time, cost, Registrar Registrar Registrar mustrespond totheapplication ” (Article6) maynotreject anapplication Registrar sends thefoundersanotice Registrar delayshisresponse doesnotrespond When a Part II: 1933. bytheCooperativeSocietiesOrdinance,societies, governed benefi bytheCompaniesAct,1999;andcooperative t, governed purpose exist.Theseinclude:privatecompaniesforthepublic different requirements forformation,membership,andpublic Two othertypesofnot-for-profi t organizations,eachwith company, atrust, a “Wakf”) and incorporate anassociationisdenied(e.g. incorporate asa 7. Are there otherviablealternatives iftherighttofreely form associations. order todistinguishbetweenregistered andnon-registered RA. ItappearsthatArticle8(A)wasaddedtothelawin words: association,registered association,ortheabbreviation and signs,attheendofitsnametoaddonethree use itsfullnameinallofdocuments,pamphlets,publications, 8(A) (a1996amendmenttothelaw)orders theassociationto respect toanyright,obligationandlegalact.Inaddition,Article to theassociation.Theassociationshallthenbecompetentin effect inthegazetteandshallissueacertifi cate ofregistration has beenregistered, the the LawofAssociations1980statethatwhenassociation that theassociationbedissolved.” pay itsdebts;(5)thecourthasfoundthatitisequitableandjust that theassociationbedissolved;(4)isunableto (3) aninvestigatorappointedundersection40hasrecommended existence orthedemocraticcharacterofStateIsrael; (2) objectivesoftheassociationareaimedatnegation ; regulations toitsobjectivesorinternal toLaworcontrary contrary (1) theactivitiesofassociationareconductedinamanner case: dissolution ofanassociationwhenanyonethefollowingis According toarticle49,“ 49-54 oftheLawAssociations(1980)) b) Involuntarydissolution-DissolutionbyCourtOrder (Articles dissolution. total freedom tothemembersdecideaboutground of exercise itspowertodissolvetheassociation,givingthus the circumstances andconditionsunderwhichtheGAmight its memberstodissolvetheassociation.Thelawissilentabout form bytheBoard, maydecidebyamajorityoftwo-thirds of (1980)) -TheGeneralAssembly(GA),whenconvenedindue a) Voluntary dissolution(Articles43-48oftheLawAssociations association oraninvoluntarilybyorder oftheDistrictCourt. An associationmaybedissolvedintwoways:voluntarilybythe 1. Whatare thecauses/grounds ofdissolution?Suspension? DISSOLUTION ANDSUSPENSION

Registrar The DistrictCourtmayorderthe shallpublishanoticetothat 37

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 38 previous notifi cation. cases 1,3,and4ofArticle49.49-2doesnotrequire any so withinareasonable timeafteritreceived inthe thewarning, to remedy thepositionandafterassociationhasnotdone but onlyafterthe 7 holding ofaconference organizedbyArableaders.Since the Prime MinisterMenachemBegininthe1980stoprohibit the military regime period(1948-1966). Itwasalsousedbyformer extensively againsttheArabminority, especiallyduringthe Israel usedtheEmergency(Defence)Regulations-1945 of Israeloritsservants. property; oractsofterrorism directed againstthegovernment offi cial capacity;destructionofordamagetogovernment of disaffectionoritsministersintheir againstthegovernment order ofIsrael;bringingintocontemptorarousal orgovernment encouraging theoverthrow by force orviolenceofthe political association” forhighsecuritybreaches, whichare inciting or a registered orunregistered association,tobean“illegal has absolutediscretion todeclare anygroup ofpersons, association”. UnderRegulation84,theMinisterofDefence 1945 toclosedownanddeclare anygroup tobean “illegal - The statemayalsousetheEmergency(Defence)Regulations The emergency(defence)Regulations-1945 months (art.148). association isconsidered asanoffence punishableup tosix funds, orpublishmaterialsforintheinterests ofsuchanillegal imprisonment forthree years(art.146).To payfees,donate 145-1 ofthePenalLawIsrael-1977),maybepunishedby associations, primarilyrelating tohighsecuritybreaches (art. the State. or anyotherstate;thedestructiondamageofproperty ofIsrael overthrow byforceorviolenceofthelawfulgovernment encourages, thesubversionofpoliticalorderbyrevolution; its regulationsorpropagandaotherwiseadvocates,incites Criminal Lawascomposedofanygroup ofpersonswhich“ registered associations.Illegalassociationsare defi ned byIsraeli are strictlydefi ned. Theycanbeeitherregistered ornon- Israeli criminallawalsoprohibits “illegalassociations”which Israeli criminallaw 4. Specialregulations Supreme Court(art.52). (dissolution) order orbyarefusal tograntit,mayappealthe Every person(partyorthird party)aggrievedbythewinding-up 3. Are there effective remedies andappeals? Generalorthe shall bemadebytheAttorney of anassociation.Theapplicationfordissolvingassociation Only theDistrictCourtcanpronounce the(involuntary)dissolution Judiciary, Executive ...) 2. Whatauthoritiespronounce thesedecisions?(role ofthe Available inEnglish at: http://www.mfa.gov.il/MFA/MFAArchive/1900_1949/Prevention%20of%20Terrorism%20Ordinance%20No%2033%20of ” Individualsfoundtobemembersofsuchunlawful Registrar has warned theassociationinwriting haswarned Registrar (art.50-a) by “ crime punishablebytenyearsinprison.TheLawprovides that for theseactsortofundtheactivitiesofaterror organizationisa to facilitateorpromote orto fundterror actsortocompensate Article 8ofthisLawprovides that anyactiontakeninproperty used humanitarian aidorassistancetothePalestiniansinOPTs. the Prohibition ofTerror Funding.”Thislawcriminalizesall In 2005,Israelpassedanewlawentitled“TheLawfor The lawfortheprohibition of terror funding-2005 led byRabbiMeirKahane. state), andtheracist“Kach”“KahaneChai”movements Prime MinisterMenachimBeginpriortotheestablishmentof organizations inIsrael,suchastheLehi(whichwasledbyformer of Israel,suchasMKDr. AzmiBisharain2001,andJewish Ordinance hasbeenusedagainstindividualArabcitizens order tooutlawArabassociations.ThePrevention ofTerrorism the StateusedEmergency(Defense)Regulations(1945)in used todeclare anArabassociationinIsraelillegal.Rather, The Prevention ofTerrorism Ordinance -1948hasneverbeen of law. not basedonexpress legislation,isincompatiblewiththerule The prevention ofterrorism ordinance -1948 with thesegroups asmembersorforfi nancial purposes. to prohibit Israeliresidents andcitizensfrom beingincontact illegal organizationsoutsideofIsrael(suchasHezbollah)inorder However, Article84,notedabove,isusedfrequently todeclare against citizensofIsraeltoclosedownassociationsisrare. 1990s, theuseofEmergency(Defence)Regulations-1945 that theorganizationisa“ organization, basedonitsowndiscretion andwithoutdebate, branch isempowered todeclare atanytime,about any isproved. organization, unlessthecontrary legal proceeding,asproofthatthebodyofpersonsisaterrorist organization. to “ The “ slogans orsingingitshymns. organization byfl ying itsfl ag, displayingitssymbols,shouting organization oritsmembers,identifi cation withsuchan organization, allowingone’s property tobeusedbyaterrorist of aterrorist organization,possessionofpropaganda ofsuchan years. TheOrdinance alsoprohibits supportorencouragement membership insuchagroup carriesamaximumsentenceoffi ve organization ispunishablebytwentyyearsimprisonment,while person ortothreatsofsuchactsviolence. toa activities toactsofviolencecalculatedcausedeathorinjury a “terrorist organization”asagroup ofpersons“ Article 1ofthePrevention ofTerrorism Ordinance -1948defi nes to compensateforterroracts declare thataparticularbodyofpersonsisterrorist government, bynoticeintheOffigovernment, cial Gazette ” According tothelaw, thatnotice“ terrorist organization. ” includesthesituationinwhich ” Thus,theexecutive ” Activityinaterrorist 7

%205708-19 shall serve inany shall serve ” Thisauthority, ” isempowered resorting inits to dowithsecurityconcerns. receive fundsorsendfunds,eveninsituationsthathavenothing common thefactthatanindividualorassociationmaynot new LawfortheProhibition ofTerror Funding-2005havein Both, thePrevention ofTerrorism Ordinance -1948andthe organizations bytheIsraeligovernment. Jihad oranyotherPalestinianorganizationsdeclared asterror because therecipients ofthefundsbelongtoHamasorIslamic “foresee” thatthismoneycouldﬁ nance aterror organizationjust charge onthebasisthatindividualsandassociationsshould to beusedforterror acts,thestatecouldsustainacriminal aid, andeventhoughthismoneywasnotusedorintended sent fundstopoorfamiliesinGazaintendedforhumanitarian the daythatRegistrarhasdeclared thatheacceptedthem. should besubmittedtotheRegistrarandtheywillvalidfrom majority voteofitsGeneralAssemblymembers.Thesechanges regulationschange itsobjectives,name,orallinternal bya Under Articles11and12,anassociationhasthefreedom to of theassociation. Associations -1980(ScheduleSection10),shallbetherules the modelrulesofassociation,whichisapartLaw regulations,does nothaveordiddecideuponitsinternal regulations.have internal UnderArticle10,ifanassociation The LawofAssociations-1980requires eachassociation to own object?(are such documentsimposed?towhatextent?) amend theirownstatutesandby-laws andtodeterminetheir 1. Whatistheextentoffreedom ofmemberstodraft and ORGANIZATION ANDOPERATION Part III: in thecaseof to beusedforthatpurpose,couldcriminalized.Forinstance, money wasnotusedtocommitaterror actnorwasitintended as aterror organizationortoitssupporters,evenwhenthis which sentfunds,directly orindirectly, toanygroup designated he intendtodoso.UndertheLaw, anindividualorassociation the recipient ofthefundsdidnotcommitanyterror actnordid must begiventheopportunitytoheard. for reasonsregulations detailedintheinternal andthemember only reasonable priornotice and exclusioncanonlybedecided exclusion ofmembers.Theresignation ofamemberrequires decide uponitsownrulesfortheadmission,resignation and of areasonable priornotice. Everyassociationisentitledto The rightforresignation isalsoguaranteedunderthecondition 15-18). Every adultiseligibletobeamemberofanassociation(Articles leave associations? 2. Howstrictisthelevel offreedom ofmemberstoadhere toor

Sheikh RaedSalah , inwhichIslamicassociations internet sites)? freely communicate (e.g. accesstomedia, publishanddevelop 4. Are associationssubjecttospecifi restricted inanyway? and publicmeetings, move freely (includinginternationaltravel) 3. Istheassociation’s righttofreely assembleororganize private See Part5:Control, transparency decide onprojects andactivities?Ifyes, howandwhy? 2. Are there anyinterference inthe freedom ofassociationsto offi limiting orbanningparticipationofwomen inassociational 4. Are there anyrestrictions (legalorde-facto)promoting, forth detailedrequirements regarding thestructure ofNGOs. well asrulesregarding confl icts of interest. Thus,theLawsets responsibilities bodies,as andauthoritiesofthesegoverning regulations.in itsinternal Provisions ofarticles32-34setforth Committee, anditmayhaveadditionalinstitutionsasprovided a GeneralAssembly, aBoard ofDirectors, andaControl bodies: association shallhavethree institutionsorgoverning Article 19oftheLawAssociations(1980)statesthateach “supervisors”? attendance ofmeetings(Board, General assemblies)by 3. Are there anyinterference inthecorporate bodies:e.g. that anorganizationmustmeet toqualifyfortaxexemption: some exemptionfrom taxes Under theIncomeTax Ordinance, «publicinstitutions»are granted conditions? 2. Doassociationsbenefi accountability. Noneofthesebillshavebeenenacted intolaw. from abroad are required forpurposesoftransparency and argue thatgreater requirements onNGOswhichreceive funding NGOs from receiving foreign funds.Proponents ofthesebills Parliament) overtheyearsseekingtobanorgreatly restrict Numerous billshavebeenintroduced intheKnesset (Israeli 1. Are there specifi FUNDING ANDTAXATION Part IV: nature andlevel ofsuchconsultations? participation indecidingonpublicinterest issues?Whatisthe 6. Istheparticipationofassociationssoughtforopinionor others limited(bothdomesticandinternational)? 5. Isthefreedom ofassociationstocooperate andnetwork with ces (e.g. Board)?

No c limitationsonreceiving foreign funds? No No t from taxbeneﬁ on income.There are sixcriteria c limitationontheirrightto No ts? Underwhat No 39

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 40 funding, whichblatantlydiscriminateagainstArabNGOs. Mossawa, dozensofcriteriaexisttodeterminetheallocation 0.5% oftheJusticeMinistry’s InheritanceFund.According to to ArabNGOsin2003and1.5%2005.received The HealthMinistryallocatedonly0.6%ofitssupportbudget allocates lessthan1.2%ofitssupportbudgettoArabNGOs. Arab NGOs.MossawaassertsthattheSocialAffairs Ministry annually, yetanextremely negligibleamountofthissumreaches support approaches NIS2.5billion(almostUS$600million) Citizens ofIsrael Research bytheMossawaCenter(A 11 10 9 8 the Public fundsare madeavailable toassociations.However, these processes prone todiscrimination? 3. Are publicfundsmadeavailable toassociations?How?Are contribute toNGOs. status, andthus,thetaxlawsare adisincentivetoindividuals total tax.Averysmallnumberoforganizationspossessthis NIS butnotgreater thanNIS4,000,000orupto30%ofone’s tax credit forcontributionstocertifi ed NGOsexceeding370 Committee oftheKnesset and (2)TheorganizationmustbeapprovedbytheFinance satisfy theIncomeTax Ordinancedefi nition ofa“publicinstitution˝; the followingconditionsmustbemet:“ donations topublicinstitutions.To qualifyforsuchanallowance, The IncomeTax Ordinance provides donorswithataxcredit for NGOs. addition totheEmployerTax (4%)whichisimposedonlyupon The VAT Lawrequires NGOstopayapayroll tax(Wage Tax), in business activities;and(3)Mustnotbeafi nancial institution. but notnecessarilyincorporated;(2)Mustengageinfor-profi t be exemptfrom VAT, it:“ added tax(«VAT») onincome.Inorder foranorganizationto in non-commercial businessare exemptfrom payingvalue However, theVAT Lawprovides thatorganizationsengaging VAT Lawof1975forsuppliesandotherservicespurchased. NGOs are required topayValue AddedTax (15.5%)underthe Minister ofFinance. and sport,aswellanyotherpublicaimapproved bythe related toreligion, culture, education,science,health,welfare, «Public aim»hasbeendefi ned broadly toincludeactivities compliance withitspublicaims. reports detailingitsexpenditures,resources,andincometoassure of thepublicaim;and(6)Theorganizationmustprovideannual income andresourcesoftheorganizationmustbeusedinpursuit each other;(4)Theorganizationmusthaveapublicaim(5) members ;(3)Themajorityofthemaynotberelatedto consist ofacollectionpeople;(2)Theremustbeatleastseven “ donors fortheiractivities. Arab NGOsinIsraelrely entirely onforeign fundingandindividual JackKhoury, “ See: http://www.usig.org/countryinfo/israel.asp#Tax_laws (1) Theorganizationdoesnothavetobeanassociation,butmust Seehttp://www.justice.gov.il/MOJHeb/RashamAmutot (Hebrew). SeeIttijah: Union of Arab Community-Based Organizations: http://www.ittijah.org/inside/ngos.html Registrar Gov’t fundingfornonprofi ts tobeassessedforanti-Arabdiscrimination ofAssociationscreated anewprocedure and ) found that the budget for governmental ) foundthatthebudgetforgovernmental 8

”. Individualdonorsmayreceive a35% 10 (1) Mustbeanassociationofpeople, ” dvocacy CenterforArab (1) Theorganizationmust 9 Most ” ,” HaaretzEnglishEdition, 2007. 26January of humanrights. especially inadividedsocietywhichthere are harshviolations the independenceofNGOsmaybeseverely compromised, at [theRegistrar’s offi thesecontrols, ce] byanyperson.”With Registrar Moreover, under Article39(b),“documentssubmittedtothe may askaboutanyactivityundertakenbytheassociation. their independence.Basedontheseprovisions, theRegistrar the substanceofworkassociationsandseverely damage AND TRANSPARENCY CONTROL AUTHORITY, GOVERNANCE Part V: associations were deniedthecertifi cate. received thecertifi cate afteralongprocess; and1,942 associations underwentadeepexamination;7,832 2,500 associationsunderwentaregular examination;767 certifistatistics for2005concerning cates ofgoodgovernance: The websiteoftheRegistrarAssociationsnotesfollowing on thisprocedure. an associationtoobtainthecertifi cate, andthere isnotimelimit to obtainthiscertifi cate. Oftentimes,itisalengthyprocess for Thus, anassociationisdependentupontheRegistrarinorder or accompanyinglawsarticulatingtheRegistrar’s powers. objective criteriaforobtainingacertifi cate ofgoodgovernance association maynotreceive publicfunds.There are noclear, to issuea“certifi withoutwhichan cate ofgoodgovernance” examine thefi nancial expenditures ofassociationsinorder exemptions. Thisprocedure allowstheRegistrartothoroughly that wishtoreceive statefundsfortheiractivitiesorsometax Associations -1980,thatappliesspecifi cally toassociations requirement in1999,whichisnotenumeratedtheLawof These provisions givetheState, through the him (emphasisadded). details mentionedintheauditedfi nancial report submittedto information, thathefi nds relevant torequest inorder toclarify during aperiodthathewilldecide,everydocumentoradditional with hiscertifi cate andcomments recommendations oftheControlCommitteeorauditor...together bodies suchas“ to thefunctioningoforganizationsanditsgoverning thesubmissionofarangedocumentspertaining concerns Article 38AoftheLawAssociations(1980)(asamended1996) principles offreedom How consistentare theactivitiesoftheseauthoritieswith (e.g. courts, ministries, independentbodies, securityapparatus)? 1. Whatare thesupervisoryauthoritiesthatoversee associations association mustgivethe a liquidator. Assembly todissolvetheassociationanditsdecisionnominate underarticles2,10or38shallbeopenforinspection ” Article38A(a)(amendment1999)statesthatthe a copyofthefi nancial reporttogetherwiththe Registrar ” and“ , basedonhisrequest and a protocoloftheGeneral 11 Registrar , control over

“secret evidence”;andwasalsodefendingMemberofKnesset banned from leavingIsraelforaperiodofsixmonthsbased on Salah, theheadofIslamic Movement inIsrael,whowas Palestinian citiesintheOPTs ;hadrepresented Sheikh Ra’ed Court challengingtheIsraeliarmy’s heavymilitaryinvasionsof had recently fi led numerous petitionsbefore theSupreme was litigatingseveralhigh-profi le cases.Inparticular, Adalah Around thetimethatinvestigation waslaunched,Adalah he intendedtoappointaninvestigatorintoAdalah’s activities. the mediaandlaterbyoffi cial noticetotheorganizationthat In August2002,the based ontherecommendation oftheinvestigator. 49 (3),thedissolutionofassociationbyDistrictCourt an investigationmightbesevere including,pursuanttoArticle the dayonwhichnoticeofdecisionwasgiven.Theresult of Registrar’s decisiontotheInteriorMinister, within14daysafter Article 41(b)provides thattheassociationmayappeal the Board orontheapplicantsforinvestigation. costs oftheinvestigationonassociation,members Article 41(a)authorizestheRegistrartoimposeallorsomeof privilege toreligious associations. support from thestate.There isnojustifi cation foraffording this many Jewishreligious associationsreceive substantialfi nancial more privilegesunderthelawthanothersNGOs.Notethat which mainlybelongtoJewishreligious groups, are afforded is controlled byJewishreligious parties.Thus,religious NGOs, Director oftheMinistryReligiousAffairs. Usually, thisMinistry these instances,the case ofanassociationinwhichtheobjectivesare religious. In use thispower. Article40(b)provides anexceptioninthe Article 40explainsthesituationsinwhich against stateauthoritiesduetofearofinvestigation. compromise theirindependencebylimitingcriticalspeech create achillingeffect amongsomeNGOsandcausethemto C. could completelyparalyzetheactivitiesofassociation. B. rights committedbythestate. relationship withthestateinorder tocriticizeviolationsofhuman human rightsorganizationswhichtrytokeepdistanceintheir decisions oftheassociation.Thisisaverysignifi cant matterfor decisions andthepersonnelmembersresponsible forthe A. of theNGOs: and magnitudehasmanynegativeeffects ontheindependence The Registrar’s powertoorder aninvestigationofthisscope directly orindirectly totheassociation. before him;andtotakereview anydocumentwhichbelongs witnesses from withinandoutsideoftheassociation,totestify by the and itsfinancial activities.Theinvestigator, whowillbenominated management oftheassociation,itsfunctioningbasedonlaw, power tothe The LawofAssociations-1980(article40)givesadditional Byexercising thispower, thestatemayobtainaccesstoall Theinvestigatoryprocess, whichmaytakeaverylongtime, Thefactthatthe Registrar Registrar , hastheauthoritytoaskanyquestions;order toopenaninvestigationinquire intothe Registrar Registrar Registrar mustconsultwiththeGeneral ofAssociationsannouncedin possessessuchpowermight Registrar may from theGalileeSociety, areallaccepted organization (Adalah)astoitsgoals,includingthefundsreceived of theLegalAdvisorInteriorMinistry, theargumentsof the InteriorMinisterstatedthat:“ the InteriorMinisteracceptedAdalah’s appeal.Inthedecision, discriminatory, andpolitically-motivated.On7February2004, clearly pointtothefactthathisdecisionwasarbitrary, illegal, arguing thattheRegistrar’s conduct,aswellhisthree claims, 2002, AdalahsubmittedanappealtotheInteriorMinister was everchargedorindictedforthebreak-in. InSeptember were burglarizedandsomecomputerswere removed. Noone to meetwiththeirrefugee relatives. InJuly2002,Adalah’s offi ces much-publicized seriesofvisitsbyArabcitizensIsraeltoSyria Lebanon andintheOPTs aswellforassistinginorganizinga policyinSouth speeches hemadecriticizingIsraeligovernment - Baladparty, oncriminalchargesstemmingfrom political Dr. AzmiBishara,theheadofNationalDemocraticAssembly court proceedings underthisLaw. The JusticeMinistermaymake anyprocedural regulations for implementation includingfeespayableforactsbytheRegistrar. to Article66,regulations onanymatterrelating tothelaw’s with theimplementationofthislawandmaysetforth,pursuant of Associations-1980.TheInteriorMinisterisalsoauthorized specifi c categoriesofassociationsfrom provisions oftheLaw Knesset Constitution,LawandJusticeCommitteetoexempt Article 65permitstheInteriorMinister, withtheapproval ofthe or theliquidator). GA meetingorfailure tocarry outtheorders oftheinvestigator (e.g., failure tosubmitafi nancial report, failure toholdtheannual duties thattheassociationmustperformvis-à-visRegistrar the omission.Theadministrativeoffences belongmostlytothe against theassociationandindividualwhowasliablefor administrative characterandcarriesthepunishmentofafi ne fraud (individualresponsibility) andtheother, whichhasan two kindsofoffences: onewhichbelongstothecategoryof This provision criminalizesindividualsandtheassociationfor fraud whentheassociationisunderadissolutionorder continues toactonbehalfoftheassociationinordercommita to aquestionwhichhewasaskedpursuantthislaw;and(2) years inprison: auditor, whodoesanyfollowing,maybesentencedforthree a staff member, amemberoftheControl Committeeorthe Article 64alsoprovides thatamemberofanassociationor liable toafi ne ofNIS1,000 personresponsibleforthecontraventionshallbe and 38,every which contravenesanyoftheprovisionsarticles18,23,29,35, According toarticle64ofLawAssociations,1980“ measures are appliedincasesofviolations? 3. Whatpenalties(e.g. criminal, fi to thepublic? 2. Are accountsandotherinformationtransparently available No (1) providesafalseanswerorinformation ” (around US$250). in accordancewiththeopinion nes, etc)andharassment .” An association . 41

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 42 • • • Funding andTaxation • • • Organization andOperation • • Formation andIncorporation 2. With regardtothelegislationandpracticerelatingcivilsocietyorganizations • • • • 1. With regardtothepolitical,democraticandhumanrightssituation WE CALLUPONTHEISRAELIAUTHORITIESTO: who donatetotheseorganizationsinordergivemoreincentivesforcontributionsNGOs. Legislate taxlawswhichprovide“tax-exempt”statusbroadlytoNGOsandgivecreditsindividualscorporations Set forthclear, writtenstandardsorcriteriainordertoensureequalstatefundingforNGOsallsectors; employer taxonemployeewageswhichappliessolelytoNGO; Cancel therequirementthatNGOspayValue AddedTax (VAT) and,cancelthe onallpurchasesofsuppliesandservices Ensure thefreedomofmovement,corollariesassociation. respect thecriminalprocedurelawandlaw. management, functioningandfi nances oforganizations.IfanNGOissuspectedviolatingthelaw, thepolicemust Cancel Article40whichgivestheRegistrarofAssociationspowertoappointaninvestigatorinvestigateactivities, activities; bythegovernmentintoNGO an NGOashedeemsrelevantbecausetheseauthoritiesconstituteundueintervention documentfrom Cancel Articles38(A)and(a)whichgivetheRegistrarofAssociationspowertoobtainevery ensuring aneasierandquickerprocessofregistration. the certifi cate ofassociationwithinareasonabletime;ensurethattheRegistrarAssociationsshouldsetforthregulations Ensure thattheperiodoftimebetweenfi ling anapplicationforregistrationofassociationandthereceipt considerationsorinterferenceinordertogiveseriousweightupholdingtherightforassociation; based onarbitrary Ensure thattherefusaltoregisteranassociationaccordingArticle4ofLaw(regardingrestrictionsonname)isno “intent”). Cancel theLawforProhibitionofTerror Funding-2005itcontradictsfundamentalprinciples ofcriminallaw(suchas organization asa“terroristorganization”withoutrelyingonclearcriteriaprescribedbyexpresslegislation; Cancel theauthorityofgovernment,asprovidedbyPreventionTerrorism Ordinance -1948,todeclareany case, ceaseusingtheEDRtoclosedownNGOswithoutdueprocessoflaw; way;inany Cancel theEmergency(Defense)Regulations[EDR]-1945whichlimitrightofassociationinanarbitrary jurisprudence oftheUnitedNationsCommitteeonHumanRights; set forthintheotherinternationalinstrumentsonhumanrightsratifi ed byIsrael,andtotakeintoaccounttherelevant Act inconformitywiththeprovisionsofInternationalCovenantonCivilandPoliticalRightsnormsprinciples t

RECOMMENDATIONS Freedom of association in Jordan

Introduction

ENABLING ENVIRONMENT OF CIVIL of assembly. The government enacted new laws including the SOCIETY - “THE GENERAL SETTING” Anti-Terrorism Law, which gives the government powers to monitor and interfere with the work of civil society organizations. 1 - The political and democratic situation linked Restrictive articles of legislation were introduced in the to human rights Political Parties Law to limit such parties’ freedom of action. In addition, there have been attempts to amend the Professional Given the youth of the Hashemite Kingdom of Jordan, having Associations Law so as to enable the government to restrict the achieved its independence in 1946, the Jordanian civil society work of those associations. can be considered nascent. As is the case in other parts of the region, political factors and frequent wars in the region played a It is noteworthy that the government constantly proclaims major role in shaping the civil society in Jordan. One could argue the principle of the rule of law even though the laws that are that the role of associations was restricted in the beginning to being legislated contain provisions contradicting the principles charity and relief work. However, their role developed with the and standards contained in the international charters and evolution of social life to cover various aspects of social and conventions ratiﬁ ed by Jordan. Moreover, such laws contravene cultural affairs. the spirit of the Constitution.

Jordan’s accession to international charters and conventions 2 - The situation of civil society: starting with the International Covenant on Economic, Social General outline for all kinds of associations and Cultural Rights, and the International Covenant on Civil and Political Rights increased awareness among various segments Offi cial statistics reveal that the number of civil society institutions of the Jordanian society about human rights concepts, exceeds 2,000 organizations, 800 of which are charity including the right of association and awareness about the associations; 300 cultural institution ; 45 centers for studies, role of associations as essential partners of the government in research, training, and social and psychological guidance. In developing the society. addition there are more than 35 foreign NGOs. The number of After martial law was lifted in 1989, most elements of the political parties is currently around 23 parties, some of them Jordanian political spectrum returned to a more democratic life, were joined into a federation framework. and the participation of ordinary citizens in Jordanian civil life In regard to geographical distribution of these organizations, was revitalized. The lifting of martial law contributed to creating statistics show that 32.3% of them are in Amman, 12.8% in more institutional stability essential to building the society. Irbid, 6% in Al-Balqa, 8% in Zarka, 7% in Mafraq, 5% in Karak, and 4% in Ma’an, Ajloun, Tafi lah, and Madaba 1. Presently, Jordan provides a certain environment for the work and development of civil society organizations as well as a According to the law, associations are “establishments that margin for freedom and democracy conducive to the presence voluntarily provide any service or activity to enhance standards of these organizations. However, the reforms currently adopted of living to citizens in the society whether in regard to culture, by Jordan that amongst other subjects the Jordanian economy education, health, sports, spirituality, social, or the arts.” The to privatization programs have refl ected negatively on the law distinguishes between charity association, social institution, country’s social infrastructure and the so-called “war on terror” ordinary institution, foreign association, and institutions formed has limited public freedoms. by a special law that act like non-governmental organizations.

The laws relating to the right of association were amended, Charity association are linked to the Ministry of Social giving the Ministry of the Interior more control over the freedom Development, while ordinary associations, like sports, cultural,

1 Ali Al-Balawnah, “Civil Society Associations’ Role in comprehensive development”, Directorate of research and Polls.

43 Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 44 children’s rights nian CommitteefortheProtectionofDomestic Violence Victims, CenterforLegaland SocialCounselingfor Women inZarka… 3 2 religious organizations(IslamicorChristian) vulnerable groups: protection ofwomen’s rights There are anumberofassociationsinJordanwith concerned 2005 and2006. in thereports oftheNationalCenterforHumanRightsissuedon cases oftorture andcoerced confessionsaswasdocumented the badsituationofhumanrightsinJordan’s jails,including There isnoorganizationspecializedincombatingtorture, despite Center, theCenterforDevelopmentandRuleofLaw, etc Rights, AmmanCenterforHumanRightsStudies,Adalah association forHumanRights,al-QanounCenter the Jordanian OrganizationforHumanRights,theJordanian general. Forexample:TheArabOrganizationforHumanRights, There arewithhumanrightsin manyassociationsconcerned related tohumanrightsandpublicfreedoms, theyinclude: There are allkindsofassociationsinJordan thatdealwithissues of InteriorandtheMinistryCulture andYouth. and socialclubs,boys/girlsscoutsare linkedtotheMinistry 8 7 6 5 4 of 1909,whichwasbasedonasystemdeclaration. In 1976,theJordanian state abolishedtheliberalOttomanlaw c) Laws title “theSocialDomain”. affi rmed theserightsfurtherinArticle10ofchapter5underthe assembly andtherightofassociation.TheNationalConvention The Jordanian constitutionaffi rms inArticle16therightof b) Jordanian Constitution (16.12.1983). CovenantonCivilandPoliticalRights the International Jordan hasratifi agreementsed mostofinternational including conventionsratifi a) .International 3 -Legislation counsel forCitizens. organizations concerned withprotectionorganizations concerned oftheenvironment special laws. are headedbyoneoftheroyal family. Theyare establishedby which appointstheirboards ofdirectors, andsomeof them buttheyweregovernmental, establishedbythegovernment NGOs”, whichisamixedtype.Theyclaimtobenon- In Jordan, there isatypeoforganizationcalled“Governmental Environmental ProtectionCommittee, theNational Association forthe LeagueofJordanian Writers (1974), Leagueof Theatre (1977), Leagueof Artists (1977), PenClub, Abd El-HamidShouman Institu The NationalCommitteefor Women’s Affairs, theFederationof Women’s Committees, theUnion ofJordanian Women, Sisterhoodis The Union ofJordanian Women, whichprovidesthe “ Courtofcassationruling number240\1991. The Counsel ofIslamic Associations. Christianassociationsworkwithinsectarianframework Like, Nour Al-Husain Foundation, theNationalcounselforfamily 7 3 ; organizations concerned withculturalissues ;organizationsconcerned edbyJordan Children HospitabilityHouse 6 ;etc. 2 ;protection of affairs, theNationalcommitteeforwomenaffairs, King Abdul Environment and Wild Life, theNational Association forC 5 4 ; ; ” program, Coast Quest Association, etc.. information/notifi 2 -Istheregistration systembasedonlicensingorsimple license as“ association. Thepenallawconsidersassociationswithout Jordanian lawdoesnotallowtheexistenceofundeclared associations? 1 -Doesthesystemallowfornon-declared orunincorporated FORMATION ANDINCORPORATION Part I of 1997,andtradeunionslaws. law ofpoliticalpartiesandassociations,thenewcompany regulates laborunionactivities,lawofcooperativeassociations, law ofpublicassemblynumber72004,thelaborwhich and organizingtheworkofcivilsocietyorganizations,mainly: There are otherlawsandregulations related to establishing number 2of1995,anditisthecurrently operativelaw. associations andsocialinstitutionsof1966amendedbelaw the workofassociations,latestbeinglawnumber33on issuedlawstoorganize After that,successivegovernments opposition policies. associations deniedregistration isusuallythosewhoadvocate association ortheexistenceoflegaltransgressions”. The justifi ed onthebasisof“diversionfrom thepurposesof In mostcases,rejection theregistration ofanassociationis (e.g. race, security, religion, politics)? 3 -Whatare thebasesuponwhichregistration canberejected? 30 days. hastoobligationreplyThe Governor tosuchrequest within from onanassociation’s theGovernor request forregistration. the samelawgivesMinisteropportunitytoseekadvice to startitsactivitiesasifitwasdulyregistered. Article 6.2of months afterreception oftherequest, theassociationisallowed answered norrequested anyadditionalinformationwithin three However, underarticle12ofthislaw, iftheMinisterhasnot accept orreject theregistration ofanyassociationorinstitution. permission from theresponsible ministerwhoisauthorized to on associationsandsocialinstitutionsrequires obtaining written For theestablishmentofanyassociationorinstitution,law and notfelony. interpretation ofthislawconsidersoffense amisdemeanor associations ofoutlawsorillegal 8 cation ? tion, etc. lah FundforDevelopment, theHigh ombating Desertifi cation, etc. Global Institute/Jordan, theJorda- ”. The

legal entity? 6 -Doesregistration automaticallyentailobtainingseparate through alawsuit. receiving theorder. Inaddition,theycan askfordamages level, tocontesttheadministrationorder within15daysfrom to theordinary courtsandtheCourtofCassationathighest When aregistration applicationisdenied,applicantscanresort is denied, delayed (e.g. judicial, administrative?) ? 5 -Are there effective remedies inthecaseswhere registration establish anassociation. be aminimumofsevenmembers,whichmakesitharder to the lawstipulatesthatnumberoffoundingmembersmust consultations withthegovernor, andsecurityservices.However, in rare caseswhentheapplicationrequires more procedures and Registration applicationsare usuallyeasyandaffordable, except 4 -Howeasyordiffi Similarly, studentsare notauthorizedtoformunions. of thepopulation,suchascivilservantsincludingteachers. union, andthustradeunionmembership,isprohibited forparts Furthermore, itshouldbementionedthattheformationoftrade decision wasconfi rm bytheCourtofCassationin1998. the sameobjectiveregistered withtheMinistry. Thisnegative on thegrounds thatthere already were otherorganizationswith ofAmman,whohadgeographicjurisdiction, by theGovernor decision oftheMinisterfollowinganegativerecommendation public libertieshaditsrequest forregistration rejected bya In March 1997,theNationalAssociationfordefenceof ceased activitiesfor6monthsordoesnothaveanyactivity; objectives different from thosementionedinthestatutes;has association which:actsinviolationofitsstatutes;pursues gives authoritytotheMinisterorder thedissolutionofan Article 16oftheLawonassociationsandsocialinstitutions 1 -Whatare thecauses/grounds ofdissolution?Suspension? OF ASSOCIATIONS DISSOLVING ANDSUSPENSION Part II: resorting tocompetentcourts. Inprinciple,itispossibletochallengetheminister’s decisionby company, atrust “Wakf”)? and incorporate anassociationisdenied(e.g. incorporate asa 7 -Are there otherviablealternatives iftheright tofreely form activities withintheirmandatesandgoals. independent legalpersonalitythatenablesthemtopursuetheir After approval ofregistration application,associationsgain an cult istheregistration ? to theMinisterdissolveanassociationinspecifi c cases. and socialinstitutionsmentionedabove,whichgivesauthority C- conditions stipulatedbylaw. to dissolvetheassociationifthere hasbeenabreach tothe B- dissolution. its generalassemblywhoare eligibletovote,voteinfavorofis A- statutes. required toobtainwrittenapproval foranyamendmenttotheir administration andtherelevant ministries.Associationsare Everything mustbedonewiththeapproval ofthepublic own object?(Are suchdocumentsimposed?towhatextent? amend theirownstatutesandby-laws andto determine their 1 -Whatistheextentoffreedom ofmemberstodraft and STRUCTURES ANDACTIVITIES Part III: leading tothedissolutionwasinvalidbothprocedurallyandinitssubstance. ‘Al-Kitaab Sunnah andthereformist Association' onthegroundsthatprocess 2007 whichannulstheMinisterofCulture’s orderofdissolutiontheassociation Worth mentioningisajudgmentbytheCourtofCassationadoptedon4July give theministerwideauthoritytodissolveanassociation. the CourtofCassation,whichusuallyadoptslegaltextsthat judiciary tocontestanorder todissolvetheassociationbefore The lawallowsthefoundersofanyassociationtoresort tothe 3 -Are there effective remedies andappeals? Judiciary, Executive ...) 2 -Whatauthoritiespronounce thesedecisions?(role ofthe ‘Ashaghila’ whichwere arrested andsubjecttolegalaction. of theIslamicActionFront andcommunistparties,suchas parliament Toujan Faisal.Today, theyare targetingthemembers founders targetedLeithShbeilat,AliAbuSukkarandmemberof In thepast,dissolutionsmotivatedbypersonalityof usually thosewhoadvocateoppositionpolicies. existence oflegaltransgressions.” Targeted associationsare such as“diversionfrom thepurposesofassociation,or applications, are usuallygeneralreasons andnotspecifi ed, and institutions,aswellthereasons forrejecting registration of dissolution.However, thereasons fordissolvingassociations third oftheGeneralAssemblyitsmembersvotedinfavour generally violatedaprovision ofthislaw;orifmore thanone gave incorrect informationtoadministrativeauthorities;more offi ces; useditsfunds forotherpurposesthanthoseplanned; refused toallowoffi cials toattenditsmeetingsorcontrol its Incasespresribed byarticle16oftheLawonassociations An associationcanbedissolvedorsuspendedifonethird of Members ofanassociationcanresort tocourtsandask 45

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 46 10 9 adopt regulations prohibit to theGovernor. Furthermore, theMinisterofInteriormay of theorganizers,mustbesubmittedatleast3daysinadvance the andplaceofeventaswellnamesaddressed Law onPublicMeetings,therequest forauthorization,including outside theirheadquartersandcenters.Underarticle3ofthe her writtenapproval forany meetingorpublicdemonstration andobtainhis\ authorities, buttheyneedtoinformthegovernor centers withoutobtainingpermissionoreveninformingthe Associations canholdtheirmeetingsinheadquartersand travel) restricted inanyway? and publicmeetings, tomove freely (includinginternational 6 -Istheassociation’s righttofreely assembleororganize private and thatitabidesbyitsgoalscooperateswiththeministry. and toinsure ingeneralthatitisdoingitsworkaccording to thelaw, documents toinsure thatitsfundsare beingspentappropriately, any associationorsocialinstitutionandinspectitsrecords and The ministerorhis/herrepresentative havetheauthoritytovisit decide onprojects andactivities?Ifyes, howandwhy? 5 -Are there anyinterference inthefreedom ofassociationsdo nature aswellintradeunions. less represented inassociations,clubsandpartiesofapolitical which tendtoconfi ne women in charitywork,theyare mush Because ofwidespread prejudices andprevailing socialmodels while thesituationisdifferent inpoliticalpartiesandtradeunions. women incharitableandsocialorganizationsinstitutions, in associations.Itisworthnotingthatthere isabigpresence of There are norestrictions inthelawonparticipationofwomen offi limiting orbanningparticipationofwomen inassociational 4 -Are there anyrestrictions (legalorde-facto)promoting, legal withouttheattendanceofministry’s representative. accordance withthestatutes.Meetingswillnotbeconsidered ministry’s employeesinorder toensure thatelectionsare heldin can delegateitsauthoritytoattendmeetingsoneofthe during whichtheexecutivebodieswillbeelected.TheMinister 15 daysinadvance,ofthedateandplacemeeting associations mustnotifytheadministrativeauthorities,atleast Under article15oftheLawonassociationsandsocialinstitutions, of meetings(Board, General assemblies)by “supervisors”? 3 -Isthere anyinterference inthecorporate bodies:e.g. attendance observe everythinghappeninginassociations. associations ordissociatefrom them.Buttherelevant ministries The constitutionandthelawaffi rm thefreedom tojoin leave associations? 2 -Howstrictisthelevel offreedom ofmemberstoadhere toor and BuildingNetworks and Alliances NationalCenterforHumanRights, 2004report. Ali Khawaldeh, “ ces (e.g. Board)? Establishing Networks and Alliances inJordan: The ChallengesandMechanisms forreinvigorating ”, organizedby Al-Quds Center forPoliticalStudies, 24-25March 2007. “the useofslogans,expressions, security bodiestoprohibit byforce anumberofactivities The adoptionoftheLawonPublicMeetingsin2004allowed national unity, securityandpublicorder” songs, drawingsandpictureswhichunderminestatesovereignty, for asimilarperiod,ifthesuspicionjustifysuchmeasures. activities forthreemonths.Thestatesecuritycourtcanextendthis activities, andseizeanyfundsthatmaybeconnectedtoterrorist places hefrequents,seizeanymaterialsconnectedtoterrorist movements, communications,preventhimfromtraveling,search atthesuspect’simpose surveillance placeofresidence,his security courtisauthorizedto“ connections withterrorist activities”theprosecutor ofthe state stipulates that“ifthere isasuspicionthatanindividualhas However, Article4ofthenewlawforcombatingterrorism since itwascreated becauseofthepoliticalpositionsitholds. Union ofJordanian Women forexamplewasdissolved twice higher levelofinterference whichcanleadtodissolution.The Associations opposingtheregime are subjectedtoamuch government. by thegoalsstipulatedintheirstatutesandare faithfultothe in associations’activitiesandprojects aslongtheyabide there isabreach ofthelaw. There isnotafl agrant interference unless or ondealingwiththemediapublishersinternet, There are nospecialrestrictions onfreedom ofcommunications internet sites)? freely communicate(e.g. accesstomedia, publishanddevelop 7 -Are associationssubjecttospecifi to writethestatereports related toitsobligationsunderhuman when itmakesdecisionsrelated topublicinterest, andasksthem consultssomeassociationsandinstitutions The government nature andlevel ofsuchconsultations? participation indecidingonpublicinterest issues?Whatisthe 9 -Istheparticipationofassociationssoughtforopinionor accomplished. and theyendwhenthegoalormissionofnetworkis alliances. However, mostofthosenetworksare temporary few yearshaswitnessedthecreation ofmanynetworksand No, there are nolegalprovisions restricting that, andthelast others limited(bothdomesticandinternational)? 8 -Isthefreedom ofassociationstocooperate andnetwork with concerning ongoingeventsintheArabregion.concerning and Tareq AbuKhalaf,because oftheirpoliticalpositions parliament AliAbuAl-Sukkar, andengineersTurki Al-Jawarneh members ofprofessional associations,suchasmemberof 2006, aseriesofarrests andabusesagainstfreedoms targeted 10 . ” , apaperpresentedatworkshop entitled “ issue anyofthefollowingdecisions: c limitationontheirrightto . Arab Reformists Arab Reformists ” 9 In enacts thelawswithoutconsultingcivilsocietyinmostcases.

receive andownproperty andfunds?How? 1 -Are there anylimitationontherightsofassociationsto FUNDING ANDFINANCIALISSUES Part IV: cassation court.Thecourt’s decisionsare fi nal. the periodmentionedabove,suspectcanappealto him/her. Ifthisobjectionisrejected, ortheprosecutor extends notifi cation object before thestatesecuritycourtwithin“ Article 4ofthecombatingterrorism lawpermitsasuspectto elections, ortodemandcompensationsfordamages. (the highcourt)tochallengethelegalityofgeneralassembly Association membershavetherighttoresort tothejudiciary 10 -Are there effective remedies andappeals? andthattheirreports aregovernments, not“objective”. with outsideagendas,thattheyare infl uenced byforeign human rightsorganizationsthattheyworkinaccordance rights organizationsstemsfrom theaccusationsleveledagainst Some peoplethinkthatthegovernment’s refusal todealwith their requests andapplicationswithsuccessivegovernments. see the‘securitymentality’asreason forthelackofsuccess Many activistsandrepresentatives ofHumanrightsorganisations agreements.rights international transferring moneysthrough them“ fi nancial depositsinanyJordanian bankorfi nancial institutionor includes anyconductrelated toabanktransaction,inparticular 147/2 ofthenewpenalcodeconsidersthatterrorist conduct In addition,thenewdefi nition ofterrorism according toArticle authority. or iftheassociationhaspresented incorrect datatothe offi cial its fundsonwaysotherthanwhattheywere designatedfor, institution ifhe\sheisconvincedthattheassociationhasspent law permitstheministertodissolveanyassociationorsocial to useassetsotherthanthetheyhavedeclared. The Laws imposemanyrestrictions thatlimittheassociations’right the funds, otherthanby theconditionsoftheirgranting? 2 -Are there anylimitationsontherightsofassociationstouse and assets. restrictions thatlimitassociations’rightstogainorownfunds and theoversightoftheirresources. organizes thewaystoestablishassociationsandpoliticalparties 16 related tooversightofassociations’resources: “ The constitutiondefines specialconditionsinArticle3paragraph 13 12 11 As-Sabil weekly, 27/7/2004. Especially inpolitical and economicalaffairs, likethelawof politicalparties, orthegeneralelections, casesofhumanrig Like reportssubmittedtotheCEDAW committee, ortheRightof ChildCommittee. ” themeasures takenbythestateprosecutor against 11 However, thegovernment if itisproventhatthemoney ” Thelawimposesmany three daysfromhis 13 the law

managing theirfi nancial affairs andtheirownresources. tointerfereallows thegovernment withtradeunions’freedom in budgets underthesupervisionofaccountingbureau, which that requires tradeunionstoputtheiraccountsandgeneral issuedanorder in Palestine,Lebanon,andIraq.Thegovernment who are suspectedofgivingsupporttothelegitimateresistance also penalizesthegivingofdonationstocharityassociations accounts belongingtoassociationsandinstitutions.Thislaw new antiterrorismtomonitorbank lawallowsthegovernment resources through inspectionvisitsthatare allowedbylaw. persistsinmonitoringtheiraccountsandfunding the government imposed onpoliticalparties,especiallyoppositionpartiesforwhich agreements andcontracts.However, actualrestrictions are funding aslongtheisdeclared andestablishedin There are noactualrestrictions forassociationinreceiving foreign effectively areHow theselimitationsonfundingare enforced? - 4 its programs andactivities. provides documentstoprove thatfundsare spenttoimplement obtaining foreign fundingaslongthebenefi ciary association doesnotrestrict organizations.Thegovernment international the UnitedNationsagencies,European Union,andsome donorstoobtainfunding.Themainare to international civil societyorganizationsfi nd themselvescompelledtoresort Because ofthelimitedresources andcapacitiesinJordan, 3 -Are there specifi funds from theministry. go directly todonorsforfundsandrefrain from applyingfor to itsowncriteria.Thissituationhasledmanyorganizations in distributingthefunds,anditcangiveorholdfundsaccording to theministry. Buttheministrydoesnotadhere tofaircriteria by organizationsandinstitutionsaftertheyfill specialapplications distributesthem toprojects managed the ministrywhichinturn ministry. According tothisplan,donorstatesprovide fundsto funding forcivilsocietyorganizationsshouldgothrough its The MinistryofDevelopmentManagementdecidedthat these processes prone todiscrimination? 6 -Are publicfunds madeavailable toassociations?How?Are associations isforeign funds. to civilsocietyassociations.Theonlysource offundingforthe limited resources andthelimitedfundingfrom thegovernment Associations donotenjoyanyfi nancial privilegesbecauseofthe conditions? 5 -Doassociationsbenefi is suspiciousandrelatedtoterroristactivity. c limitationsonreceiving foreign funds? t from taxbenefi hts violations, andtheincometaxlaw. ” Furthermore, the ts? Underwhat 47

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 48 the associationviolateslaw. any association,afterconsultingwiththerelevant authorities,if monitor associations.Theministerisempowered todissolve budget. Thecompetentministeristheauthorityempowered to regarding theiractivitiesreports andfi nancial monitoringoftheir Article 15ofthelawimposestoassociationsseveralobligations and anyotherinformationdeemednecessarybytheMinistry. that containstheirnames,thescopeofactivities,aims, representative maintainsarecord forallregistered associations supervising sportclubsandculturalinstitutions.Theministerorhis of unions.Theministerculture andyouthischargedwith charity associations,socialinstitutions,andthedifferent kinds the ministerofsocialdevelopmentischargedwithsupervising According tothelawofassociationsandsocialinstitutions, the Declaration)? authorities withtheprinciplesoffreedom (checkprinciple16of security apparatus)? Howconsistentare theactivitiesofthese associations (e.g. courts, ministries, independentbodies, and 1 -Whatare thesupervisoryauthoritiesthatoversee TRANSPARENCY MONITORING, GOODGOVERNANCE,AND Part V: civil activitiesbyassociationsortheirmembers. standards,international whichprohibit criminalsanctionsagainst found inbreach ofitsprovisions, whichisincontradictionwith of sanctions,includingprisonsentences,againstpersons The lawofassociationsandsocialinstitutionscontainsanumber measures are appliedincasesofviolations? 3 -Whatpenalties(e.g. criminal, fi available tothepublic. Hence, fi nancial records ofassociationsmustbedeclared and these reports anddistributethemtothegeneralassembly. their association.Themanagingboards are required toprepare has therighttoreview fi nancial andadministrationreports of The lawstipulatesthatthegeneralassemblyofanyassociation to thepublic? 2 -Are accountsandotherinformationtransparently available nes, etc)andharassment

RECOMMENDATIONS • • 3. Concerningtheenvironmentrequiredforasustainable development ofthecivilsociety • Monitoring, goodgovernanceandtransparency • • • • Funding andfi • • • • Allowallorganizationstofreelyadoptandmodifytheirstatutes; Structure andactivities • • Dissolution andsuspension • • Establishment andregistration • • 2. With regardtothelegislationandpracticerelatingcivilsocietyorganizations • • • • • 1. With regardtothepolitical,democraticandhumanrightssituation WE CALLUPONTHEJORDANIANAUTHORITIESTO: policies. Allow andformalizetheparticipation ofcivilsocietyorganizationsinthedecision-makingprocesses regardingpublic in particular; Put anendtothe“securitymentality”whendealingwithcivilsocietyorganizations ingeneralandhumanrightsorganizations civil activitiesoftheorganizationsortheirmembers. Repeal alllegalprovisionsallowingforcriminalproceedings,whichmay leadinsomecasestoimprisonment,relation Ensure thatfundsofassociationscanbefrozenorseizedonlyonthe basisofafi nal judicialruling. Exempt civilsocietyorganizationsfromtaxesandcustomsduties; Allocate partofthepublicfundstosupportprogramsandprojects runbycivilsocietyorganizations; Abolish allremainingrestrictionsregardingaccesstoforeignfundingforcivilsocietyorganizations; international bodieswithoutpermissionoftheminister. Allow Jordaniancivilsocietyorganizationstoformnational,regionalandinternationalcoalitionsaffi liate with Abolish therequiredauthorizationofadministrativeauthoritiesforanyoutdooractivitiesorpublicmeetingseven the organization’s electivebodies; so thattheattendanceofministry’s representativeisoptionalandcannotaffect thevalidityofdecisionsmadeby and thereforethepossibilityforministertosendarepresentativethesemeetings;inanycaseamendlegislation Abolish therequirementofinforminginadvanceauthoritiesupcomingmeetingsorganization’s electivebodies dissolution orsuspensiondecisionpronouncedbytheauthorities. Guarantee therighttoaneffectivejudicialrecourse,withsuspensiveeffectandwithinareasonableperiod,incaseof Assign exclusivecompetencetodissolveorsuspendanassociationjudicialcourts; Simplify therequirementsforestablishinganassociation,includingbyreducingtotworequirednumberoffounders. Governor bytheminister; Abolish boththerequirementofapriorauthorizationbyministerforregistrationandconsultationdistri public meetingsandtheLawonfi ghting terrorismasfollows: related tofreedomofassociationandforthatpurposemodifytheLawonassociationssocialentities, Upgrade theJordanianlegislationandpracticeinordertobringthemintoconformitywithinternationalstandards establish andbecomemembersofprofessionalorganizations; andteachers,onuniversitystudentstofreely Lift thebanonseveralprofessionalgroups,includingcivilservants minority statuswhendealingwithcivilsocietyorganizations.Createanappropriatecomplaintmechanism. Eliminate allformsofdiscriminationbasedongender, race,language,religion,politicalopinions,sexualorientationor manner withcasesrelatedtohumanrightsand,moregenerally, withcasesrelatedtocivilsociety activities; inordertoallowitdealanindependent,impartiallyandfair Strengthen theroleandindependenceofjudiciary and membersofthesecurityforces); (incl.governmentandcivilservants Raise awarenessandpromotetrainingonhumanrightsprincipleamongstcivilservants standards andprinciples; Repealthelawonfi ghtingagainstterrorismasitis notinconformitywiththeConstitutionandhumanrightsinternationa jurisprudence oftheUnitedNationsCommitteeonHumanRights; set forthintheotherinternationalinstrumentsonhumanrightsratifi ed byJordan,andtotakeintoaccounttherelevant Act inconformitywiththeprovisionsofInternationalCovenantonCivilandPoliticalRightsnormsprinciples nancialissues ct t; l 49

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Freedom of Association in Lebanon

Introduction

ENABLING ENVIRONMENT OF CIVIL army from Lebanon and the war between Israel and Hizballah, SOCIETY - “THE GENERAL SETTING” Lebanon is facing a period of political uncertainty where the question of the continued inﬂ uence of Syria and of other regional 1 - Political, Democratic and Human Rights Speciﬁ c powers over Lebanon’s political life are at stake. Contexts 2 - Civil Society Landscape

Lebanon is a multi-confessional presidential republic, Lebanon has been a part of the United Nations since its independent since 1943. The Constitution dates from May 1926 founding in 1945 and has ratifi ed a number of international and has been amended several times, most recently by the instruments which reaffi rm the freedom of associations. Some Charter of Lebanese National Reconciliation (Taëf Agreement) texts concerning this fundamental freedom are also found in of October 1989 which ended 15 years of civil war. Lebanon’s its Constitution and its laws. It should also be noted that the political system is characterised by power sharing between Associations Act also covers political parties. religious confessions. According to the Taëf Agreement However, freedom of associations in Lebanon is not absolute, Christians and Muslims are represented on a 50:50 basis in far from it. the Parliament, the Council of Ministers as well as in all high Foreigners are not allowed to form associations in the same ranking civilian and military posts. All sub-communities Alawi, manner as the Lebanese. A special law requires that prior Druze, Shia, Sunni within the Muslim community, and Armenian authorization be taken by decree to the Council of Ministers Catholic, Armenian Orthodox, Greek Catholic, Greek Orthodox, for the creation of a foreign association, and introduces strict Maronites and Protestants within the Christian community are control over all activities of the association. represented in a “proportional” manner within this overall ratio. Moreover, homosexuality is forbidden and so are the associations of homosexuals. The Lebanese citizenship is granted only by membership to a Similarly, the young have no freedom to form and manage denominationally determined group, however, it is theoretically associations. The youth associations - and sports - are possible to be Lebanese without having a religion (see the exempt from the law of associations, and are subject to the campaign for the withdrawal of the confessional marital status prior authorization of the competent minister, and the lives of register). The peculiarity of the Lebanese system which is these associations is completely governed by the ministry and supposed to encourage greater space of freedom compared subject to the discretion of the minister and its director general. to other countries in the region, has sometimes formed a barrier The comprehensive reform of the interiod is considered as the to individual freedom and respect for human rights. It is indeed overhaul of the law, but it seems that the desire to liberalize the very diffi cult to impose major restrictions in any permanent law has eroded recently. fashion to the 18 different confessional groups whom all enjoy Finally, the legislation regulating the trade unions is also very full freedom regarding personnel status and education, areas restrictive and for establishment of trade unions there is required traditionally reserved for the central government in any other a double authorization from the Minister of Labor as well as that country. Unfortunately when it comes to impose restrictions on of the Interior Minister. The freedom to join or not to join a union individual freedom, the main religious leaders are all in agreement is not respected, neither that of negotiating, any more than the to expand their own rights and restrict those of citizens, as in the right to gather. The administrative control affects all levels of life example of bringing optional civil marriage to the legislation. and functioning of the association At the time of writing and following the withdrawal of the Syrian

50 Society, etc. mothers associations - - InstrumentsRatifia) International ed byLebanon 3 -LebaneseLegislation to associationsbythelaw. , eventhoughthisdeprivesthemfrom theadvantagesgranted torture associations Lebanese territoryare associationsofalltypes:Humanrights This diversityisrefl ected inassociations.Thus,operatingon Civil societyishighlydiversifi ed forthereasons citedabove. 12 11 10 9 8 7 6 5 4 3 2 1 environment associations Delinquents inLebanon, etc.... Rights inLebanon, Kafa, etc... Lebanese CentreforHumanRights, FoundationforHumanRightsand Association forCivilRights, Amnesty International, Palestinian Association forHumanRights(Rased), LebaneseNGOsForum, Pal creation ofcivilcompanies the obtainingofalicense,someassociationsresorted tothe inviolationofthelawforce, andtocircumventgovernment Nevertheless, duetotherepressive policyimplementedbythe granted toassociationsbylaw. commercial, evenifthelatterdoesnotgivethemadvantages associations haveoptedforthecreation ofcivilsocieties,even of thelawinforce, andtoavoidobtainingalicense,certain exercised overaperiodoftime-inviolation bythegovernment On theotherhand,andinviewofpolicyrepression period orbecreated byindividualsforadeterminedperiod. objective. Theycanbelongtoacommunityforanundetermined could belabelledas“foundations”havinggenerallyacharitable Lebanon, likeothercountriesintheregion, has leaders orrunbytheirwives. and charitabledevelopmentsdirectly related toseniorpolitical qualify themasGONGOS,withtheexceptionofassociations have aproximity topower, however, itisnotalwaysobviousto delinquents associations Prisoners’RightsObservatory, Coordinationand Action Committeefor Prisoners, JusticeandMercy Association, etc. GoodShepherdSistersHome ChildrenofLebanon” association Lebanese Women Council, CivilCommitteefor theFollowupof Women’s Affairs, United Women CommitteesoftheNorth, Lebanese W Al-Khiam CentrefortheRehabilitationof Torture Victims, CommitteefortheSupportofLebaneseDetainees in SyrianPrisons( LebanesePublicInterestCentre(PINACLE), thatofferslegalaidtomigrantworkers, CatholicReliefServices Caritas, Frontie Association fortheDefenceofRightsandFreedoms(ADDL), LebaneseHumanRights Association, Lebanese Association forDemocra Arc en Ciel, National Association fortheRights Juvenile Delinquents Aid Association, Daral Amal, OffreJoie, Unionforthe ProtectionofChildhoodinLebanon, the Lebanese A No. 3855ofSeptember1st1972. promulgation ofimplementationdecree bythegovernment ratifi ed thiscovenantonNovember3rd 1972afterthe CovenantofCivilandPoliticalRights: International United NationsOrganization. Rights United NationsCharterandUniversalDeclarationofHuman Ex: Zawaya Association For instance, MounzerFoundation hasthoughtinthebeginningto GreenLine, LebanonNatureEnvironment, SPNL, GreenForum, GreenPeaceLebanon, SocietyfortheProtectionofNature, AFDC, et 3 ;womenassociations that Lebanonadoptedasafoundingmemberofthe 1 ;legalaidassociations 6 ;prisonersassociations 8 10 11 ;handicappedassociations . MuchoftheLebaneseNGOs ,orevencommercial companies

4 ;children associations 2 ;associationscombating of Handicapped, LebanesePhysicalHandicappedUnion(LPHU), HandicappedForum create acivilcompany, thenended upcreatingthiscompanyi 7 ;juvenile Wakfs Lebanon Humanitarian Law, Lebanese Association forEducationand Trai 5 ;single that 9 ; 12 amende (art.337,338,339duCodepénal). of aﬁ ne (art.337,338,339ofthePenalCode).payementd’une penalties thatcouldleaduptoprisoninadditionthepayment that are prohibited underthe1909lawthatlaiddowncriminal The Lebanesesystemdoesnotrecognise “secret associations” associations? 1 -Doesthesystemallowfornon-declared orunincorporated OF ASSOCIATIONS FORMATION ANDINCORPORATION Part I: • • • • • • • • •Ottomanassociationlawofaugust3rd 1909 - - Instruments b) Internal matière desassociations Law andDecrees Associations Governing article 13. guarantees theprincipleoffreedom ofassociationinits The LebaneseConstitution Decree-law No.35ofMay9th1977regarding Organizations that created a“ Article 22ofdecree No.5734ofOctober20th1994 institutions Decree-law No.87ofJuly30th1977regarding cooperatives Decree No.17199ofAugust18th1964regarding trade unions regarding thecreation of September 23rd 1946anddecree No.7993of2/4/1952 The secondchapterofLabourCode(article86andf.) National EducationandSports; and sportassociationstothecontrol oftheMinistry Law No.16/72ofDecember15th1972thatsubjectsyouth was dissolvedforcrimeagainststatesecurity; anybody from endeavouringto Decree-law No.10830ofOctober9th1962prohibiting associations inLebanonandthatisstillforce; foreignHigh CommissionerGabrielPUAUX,thatgoverns Order No.LR369ofDecember31st1939,issuedby ; ; ; ” withintheMinistryofSocialAffairs. Service forVolunteerService Associationsand employers associationsandworkers rs, Ruwas Association, etc... n theUSAandopened abranchinLebanon SOLID), etc... , TheLebaneseconstitution estinian OrganisationforHumanRights, ssociation fortheProtectionofJuvenile continue anassociationthat ning, etc... oman’s Voice, Leagueof Women’s c... tic Elections(LADE), Lebanese ,Zawrak,Lebanese Autism Al quirégissentla public interest mutual funds; 51

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 52 14 13 received the“ October 2006andMay1st,2007,theassociationdidnotyet ZAWAYA, another artisticassociation,depositeditsstatutesin 1st, 2007,the“ at theMinistryofInterioronJuly11th,2006anduntilMay example, FABRIC, anartisticassociation,depositeditspapers and aboutfavouritismtothebenefi t ofsomeassociations.For about delaysinthedeliveryofacknowledgementreceipt khabar Theoretically, theministryofInteriormustdeliver“ number ofincorporators) 4 -Howeasyordiffi iii. ii. i. The causesfortherejection ofregistration are thefollowing: (e.g. race, security, religion, politics) 3 -Whatare thebases uponwhichregistration canberejected? minister oftheInterior. a doubleauthorisation,from theministerofLabourandfrom the and workerstradeunionsemployersassociationsthatneed to theauthorisationofministerHabitatandCooperatives, Direction ofYouth andSports,cooperativesthatare subjected the authorisationofministerNationalEducation-General Ministers, youthandsportsassociationsthatare subjectedto associations whichneedadecree issuedbytheCouncilof are thussubjectedtoapriorauthorisationsuchasforeign Exceptions are provided forinspecifi c laws.Someassociations the associationandgiveacknowledgmentofreceipt. the Administrationcannotrefuse totakenoteofthecreation of not constituteanapproval from theAdministration.Therefore, of theexistenceassociationafteritscreation anditdoes the association.Itisasimplenotifi cation ofthepublicauthorities proving thattheAdministrationisdulyinformedofexistence deposited thedeclarationandanacknowledgementofreceipt the sametimeareceipt proving thattheassociationhasduly the Administrationafterdepositofdeclaration.Itisat procedure called The Lebanesesystemisbasedonasimpleinformation information/notifi 2 -Istheregistration systembasedonLicensingorsimple the world: http://www.state.gov/g/drl/rls/hrrpt May ChidiacFoundationforinstance). “ aalm wakhabar necessary information; If thedeclarationisincompleteanddoesnotcontainall We cangivetheexampleof Lebanese Association forDemocraticElections (LADE);reportofthisassociationonthe1996 ele Regarding allillegalpracticesoftheLebanese Administration, cf. reportsofthe American StateDepartment, onthedepartment premises oftheassociationheadquarters; founding membersaddressed theadministrationoutside In accordance withthe issued bytheCouncilofMinisters. followed bythedissolutionofassociationadecree article 3ofthelaw;butinthiscase,rejection mustbe If theobjectofassociationisunlawful,inaccordance with ” withoutanydelay. Butinpractice,associationscomplain aalm wakhabar ” intwodaysonly(Thatwasthecaseof aalm wakhabar cation? “aalm wakhabar” cult istheregistration: (e.g. time, cost, rationae loci ”. Othersassociationsgettheir ” hasnotbeendelivered yet. , adocumentdelivered by competence,ifthe aalm wa “ abolished thispractice,thelatterisstillimplementedand No.10/am/2006 of19/5/2006theministryInteriorhas associations tothepriorauthorisationregime. Althoughcircular that iscontrarytothelawbysubmitting“ The Administrationhasalsoimplementedintheeightiesapractice subsidies contrarytothosethatdonotobtainthislabel. receive the“publicutility”labelbenefi t from ensuingfi nancial afterwards. the bydeliveryofregistration receipt whichisprovided declaration andthefi le ofestablishment.Itisnotconditionedby personality isautomaticallyacquired afterthedepositof and theirsignature onthestatutes.Theobtainingoflegal fromAn associationisborn thewillofitsfoundingmembers legal personality? 6 -Doesregistration automatically entailobtainingseparate lead toanyresults. lawsuit before theStateCouncilispossiblebuttakesyearsto the minister’s discretionary powerintheassociationfi eld. A intercession oftheministerwhichconstitutesaresurgence of the deliveryofacknowledgmentreceipt exceptforthe We don’t knowanylegalorjudicialprocedure toaccelerate is denied, delayed (e.g. judicial, administrative?) 5 -Are there effective remedies inthecaseswhere registration minimum wageappliedinLebanon. cost ofpublicationfeescanbeprohibitive giventheverymodest requirement leadstoanadditionaldelay. Moreover, thehigh payment ofthepublicationinOffi cial Gazettefees.This sets asaconditionforobtainingthe“ Furthermore, contrarytotheprovisions ofthelaw, theministry discretionary andsometimesevenarbitrary set, theattributionofthislabelbyAdministrationremains the attributionofthislabel.Eventhoughsomecriteriahavebeen associations thatare declared of“publicutility”bycontrolling The Administrationexercises aguardianship poweronsome a) IllegalpracticescarriedoutbytheAdministration 8 -SomeIllegalPractices company. Individualscanalsocreate wouldbetoincorporateasacivilorcommercialAn alternative company, atrust “ and incorporate anassociationisdenied(e.g. incorporate asa 7 -Are there otherviablealternatives iftherighttofreely form VAT discount. “ the existenceofa by animportantdecisionoftheStateCouncilin2003. aalm wakhabar wakfs ”, companieswillpayincometaxandcannotbenefi t from ” are delivered attheminister’s discretion despite uniform and Wakf ”) 13

stable jurisprudence ’s tohumanrightsin websitereserved ctions, Darel-Jadid, Beirut, 1997 wakfs aalm wakhabar . But,exceptforthe 14 . Associationsthat aalm wakhabar enshrined ” the ” years. nationalism political nature, itcanbedissolved ifitisbasedon“ stirring uppoliticaldiscriminations.Iftheassociationisofa order, stirringupcoupsortryingtooverthrow thegovernment, Ministers forviolationoflawandgoodmanners,public An associationcanbedissolvedbyadecree oftheCouncil object aswellsecret associations. 338 ofthePenalCodeprohibiting associationswithanunlawful for havinganunlawfulobjectpursuanttoarticles336,337and An associationcanbedissolvedbyapenaljudicialdecision the expirydatespecifi ed inthestatutes. and Contractsanassociationcanbedissolvedbythearrivalof freedom establishedbyarticle166oftheCodeObligations all members,inaccordance withtheprincipleofcontractual silent, thedissolutiondecisionmustbetakenunanimouslyby and necessarymajoritiesforthispurpose.Ifthestatutesare In thiscase,thestatutesmusthavespecifi ed thequorum An associationcanbedissolvedbytheGeneralAssembly. 1 -Whatare thecauses/grounds ofdissolution?Suspension? OF ASSOCIATIONS DISSOLUTION ANDSUSPENSION Part II: and seriouslyharmfultoahealthyassociationlife. advantages grantedtoassociations.Thisfraudiswidespread Some peoplecreate fi ctitious associationstobenefi t from fi scal b) Illegalpracticescarriedoutbyassociations Interior interference powers(thispracticehasceasednow). statutes) containingclausesconferringtotheministryof It usedtoimposethemodelsofpre-printed statutes(standard declaration through abailiff (ADDL,CLDH,Zawayaetc.). of thenewdeposit,evenifassociationhadmadebefore a note” oftheexistencesaidorganisationasdate do nothaveinfactanyfi le attheministry. Itacceptsto“take that neverreceived theacknowledgmentofreceipt andthat of theInteriorrefuses toregularise thesituationofassociations receipt tosomecategoriesofassociations.Thecurrent Ministry to receive thedeclarationandtogiveacknowledgmentof the acknowledgmentofreceipt ofthe“ The Administrationconductsinvestigationsbefore thedeliveryof 16 15 Arab nationalism. association. Ministers canalsopronounce thedissolutionofanon-declared (Article 1ofdecree No.10830 of9/10/1962).TheCouncil security andwere convicted withoutthepossibilityofappeal committed, intheirpartisancapacity, crimesharmingnational by adecree oftheCouncil ofMinistersiftheirmembers Cf. the2006report ofthe American StateDepartmentonhumanrightsinLebanon, http://www.state.gov/g/drl/rls/hrrpt/2006/7885 This provisionresultsfromtheOttomanlaw of1909, whentheOttomanEmpire hadstartedthemodernizationofitslawsandinst

” 15 . Associationsofpoliticalnature canbedissolved aalm wakhabar nationality or ”. Itrefuses period isnowrevolved. different andconstitutedablatantviolationofthelaw The practicefollowedpreviously bytheadministrationwas constitute grounds forthedissolutionofassociation. the ministryexposesitonlytopaymentofafi ne andcannot and informtheMinistryofInterior. Thenon-notifi cation of obligation istoobservetherulessetbystatutesandby-laws does notneedapriorauthorisationforthispurpose.Theonly An associationcanamenditsstatutesatanymomentand two parts:thestatutesthemselvesandby-laws. according tocustomarypractice,thestatutesare divided into As fortheby-laws,lawmakesnoprovision forthem.But, composed oftwomembersatleast. objective, GeneralAssemblyandadministrativecommittee by thelawistohavestatutescomprisingassociation’s name, agreeing onadministrativedetails.Theonlyobligationimposed of theassociation,leavingtomembersthemselvestask The lawsetsonlythegeneralframeworkformanagement own object?(are suchdocumentsimposed?towhatextent?) amend theirownstatutesandby-laws andto determinetheir 1 -Whatistheextentoffreedom ofmemberstodraft and ORGANIZATION ANDOPERATION Part III: - Byajudicialdecision(civil,administrativeorpenalcourt). - Byadecree oftheCouncilMinisters, - Dissolution orsuspensiondecisionsare taken: Judiciary, Executive ...) 2 -Whatauthoritiespronounce thesedecisions?(role ofthe be appealedbefore theAppeal Court. the righttoexpel(orexclude)members.Exclusiondecisionscan conditions onlysetaminimumthreshold. Associationshavealso their civilrightsorsentencedtoacriminalpenalty. Butthese membership ofpeoplenothavingthecapacityi.e.deprived less than20yearsoldtojoinassociations.Italsobansthe association’s statutesandby-laws.Thelawprohibits people that theyfulfi l theconditionsimposedbylawand have therighttojoinornotanassociationprovided This freedom isguaranteedbytheLebaneselaw. Allpersons leave associations? 2 -Howstrictisthelevel offreedom ofmemberstoadhere toor expiry datespecifi ed bythestatutes), Pursuant tothemembers’will(GAdecisionorarrivalof 7.htm, aswellreportsof previous itutions, andaimedinparticularat 16 . This 53

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 54 territories. of agivenassociationwere bannedfrom leavingLebanese Furthermore, wehavenotheard ofacasewhere members 18 17 the press law). are totallyfree withinthelimits provided forbythelaw(particularly sitesdevelopment Access tomedia,publicationsandinternet human rightsactivistsinparticular. is probably phone-tapping.But thispracticedoesnotonlytarget This rightisrecognised bythe Lebaneselaw. Theonlyviolation internet sites)? freely communicate(e.g. accesstomedia, publishanddevelop 7 -Are associationssubjecttospecifi attend themeeting.Thispracticehasdisappeared today to theministryofInteriorwhowouldsendadelegate the associationmeetingshadtobecommunicatedinadvance was violentlyrestricted andthedatesaswellagendaof This freedom isrecognized bytheLebaneselaw. Inthepast,it travel) restricted inanyway? private and publicmeetings, move freely (includinginternational 6 -Istheassociation’s righttofreely assembleororganize is reported. to decideitsprojects andactivities.Currently nosuchpractice to theAdministrationinterfere intheassociation’s activityand at agivenperiodofLebanon’s recent historygavefullpowers Previously, standard statutesthatwere imposedonassociations of anassociationtodecidetheactivitiestheirassociation. The Lebaneselawguaranteesthefreedom ofthemembers decide onprojects andactivities?Ifyes, howandwhy? 5 -Are there anyinterference inthefreedom ofassociationsdo the objectoflegalproceedings before thejudiciary. these restrictions are notdeemedillegalandcanconstitute contain prohibitions orrestrictions ofthissort,3)eveniftheydid, 2) wecannotknowwhetherthestatutesofsomeassociations However, 1)there isnotextbanninganyformofdiscrimination, in associationaloffi ces particularlytheExecutiveCommittee. jure, limitingorbanningtheaccessionparticipationofwomen We haven’t hadreported inLebanonarestriction, defactoor offi limiting orbanningparticipationofwomen inassociational 4 -Are there anyrestrictions (legalorde-facto)promoting, Lebanon civilwarinthe70s’. witnessed abusiveinterference bytheAdministrationduring to chooseitsExecutiveCommitteemembers.ButLebanon comprise anyprovision restricting thefreedom oftheassociation This freedom isguaranteedbytheLebaneselawthatdoesnot “supervisors”? attendance ofmeetings(Board, General assemblies)by 3 -Are there anyinterference inthecorporate bodies:e.g. Abovementioned report ofthe American StateDepartment Abovementioned American State Department2006report. ces (e.g. Board). 17

c limitationontheirrightto 18 . State Council. the CouncilofMinisterscanchallengedecisionbefore the before theAppealCourt.Anassociationdissolvedbydecree of instance. Theexclusiondecisionofamembercanbeappealed and engageinlegalproceedings before theCourt of fi rst decision oftheExecutiveCommitteecanresort tothejudiciary The memberwhowantstocontestelectionsresults oranyother 10 -Are there effective remedies andappeals? and discussedattheCommission. association milieuissolicitedtoconductastudybepresented human rightsissues.Foreverymatter, aspecialistfrom the drafting, incollaborationwiththeUNDP, anActionPlanforall In parallel,theParliamentaryHumanRightsCommissionis framework oftheEuropean NeighbourhoodPolicy. Agreement betweenLebanonandtheEuropean Union,inthe of theActionPlanattimeconclusionAssociation Associations were (shyly)solicitedforadvicetheformulation on theinitiativeofEuropean UnionandtheUnitedNations. It seemsthatanewtrend hasstartedtoemergeinLebanonlately nature andlevel ofsuchconsultations? participation indecidingonpublicinterest issues?Whatisthe 9 -Istheparticipationofassociationssoughtforopinionor levels. international There are norestrictions onthisfreedom both atlocaland others limited(bothdomesticandinternational)? 8 -Isthefreedom ofassociationstocooperate andnetwork with immediately toassociationsupon thesubmittalofreceipts and their balancesheetshowsprofi ts. TheVAT isevenreimbursed As fortaxbenefi ts, associations donotpayincometaxevenif what extent? 4 -Doassociationsenjoy anyfi receiving foreign funds. The Lebaneselawdoesnotincludeanyspecifi c limitations on 3 -Are there specifi their granting. of associationstousethefundsotherthanbyconditions The Lebaneselawdoesnotincludeanylimitationsontherights use fundsinways different thanwhattheirstatutesstipulate? 2 -Are there anyrestrictions thatlimittherightofassociationsto of associationstoreceive and ownassetsandfunds. The Lebaneselawdoesnotincludeanylimitationsontherights property andfunds? 1 -Are there anylimitationsontherightsofassociationstoown FUNDING ANDTAXATION Part IV: c limitationsonreceiving foreign funds? nancial ortaxes privileges? To principles offreedom (checkprinciple16oftheDeclaration)? How consistentare theactivitiesoftheseauthoritieswith (e.g. courts, ministries, independentbodies, securityapparatus)? 1 -Whatare thesupervisoryauthoritiesthatoversee associations AND TRANSPARENCY OVERSIGHT, GOVERNANCE Part V: khabar accounts toassociationsthatdonotsubmittheir“ to create associationsbyprohibiting banksfrom opening The Administrationimposesanindirect limitationonthefreedom government. khabar As forthe“consent”notion,itdoesnotexistand“ decision toattributethelabelordenyitisrelatively arbitrary. is prone todiscrimination.Infact,thelawallowsabusesand ensuing fi scaladvantages.Theattributionprocedure ofthislabel to associationshavingasocialobjective,andcanenjoythus label, attributedexclusivelybytheMinistryofSocialAffairs associations canbenefi t from the“publicutilityassociation” Some associationare grantedaccesstopublicfunding.Some these processes prone todiscrimination? 5 -Are publicfundsmadeavailable toassociations? How?Are of theacknowledgmentreceipt ofthe“ Administrative Committee. settle disputesbetweenmembers ofanassociationandits and demandsitsdissolution.Theyare alsocompetentto Public Prosecution thatbrings theassociationbefore justice when thedissolutionofassociationisjudicial.It Judicial jurisdictions: disputes opposingassociationsandtheministryofInterior. Administrative jurisdictions: to associations. Different jurisdictionsare competenttosettledisputespertaining b) JudicialControl with article17oftheDeclaration. Council ofministers.Thispracticeisobviouslyincontradiction its dissolutionbyadministrativemeans,i.e.adecree ofthe of thelawbyanassociation,itisministrythatproposes allowing ittoexercise itscontrol. Intheeventofaproven violation the records imposedbythelawshouldbesentto ministry the creation oftheassociationanditsactivities.Everyyear, The ministryoftheInteriorimposesasubsequentcontrol on a) AdministrativeControl the VAT discount. but didnotreceive yetthe“ acknowledgement ofreceipt theassociationthatwasdeclared because ofthedelayadministrationindelivering ”. ” associationsdonotenjoyanyassistancefrom the judicialjurisdictionsare competent aalm wakhabar TheStateCounciliscompetentin ” cannotbenefi t from aalm wakhabar aalm wa aala wa ”. But aborts anytransparency policyinthisregard. from havingaccesstoanyaccountswhatsoever. Thiselement Moreover, banksecrecy bansanybodywithoutauthorisation by law. in theOffi cial Gazette,averycostlymeasure thatisnotrequired founding members.Buttheministryisimposingpublication no register thatcouldgiveinformationonassociationsandtheir Accountancy booksare notaccessibletothepublic.There is for thispolicy. for PoliticalSciencesandCivilPeaceAssociationpaidtheprice the AdministrationinJanuary. BoththeLebaneseAssociation after thesupposeddateofsubmittalrecords specifi ed by that present spontaneouslytheirrecords butwithasmalldelay Interior isabusivelyimposingsanctionsandfines onassociations moment bytheAdministration.However, theministryof these booksandotherwrittenproofs canberequested atany associations tokeepaccountancybooks.Theverifi cation of legislation inaveryaccuratemanner. Thelawcompels Accounts transparency isnotregulated bytheLebanese to thepublic? 2 -Are accountsandotherinformationtransparently available b) a) measures are appliedincasesofviolations? 3 -Whatpenalties(e.g. criminal, fi civil activities, which is contrary to international law.civil activities,whichiscontrarytointernational brought before penaljurisdictioninsomecasesrelated totheir Penal jurisdictions: cases; The dissolutionoftheassociationinabovementioned payment ofafi ne (art.337,338,339ofthePenalCode). associations thatcouldleaduptoprisonaswellthe Penal sanctionsformembersofsecret ornondeclared theassociationanditsmemberscanbe nes, etc)andharassment 55

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 56 • • • 3. With regardtotheclimaterequiredforsustainabledevelopmentofcivil society • • Funding andTaxation • Organization andOperation • • • • • • Formation andIncorporation • Abrogatearticle4thatestablishesracistandanti-democraticrules. • Redraftthetextinawaytodeleteanyreferenceottomanauthoritiesandcurrency; 2. With regardtothelawsandpracticespertainingassociationscivilsocietyorganizations • • • 1. With regardtothepolitical,democraticandhumanrightssituation THE LEBANESEGOVERNMENTISCALLEDUPONTO: common lawassociations,youthandsportspoliticalparties, foundations,waqfs,andreligiousassociations. thatwouldgather, oftheInteriortoabigministry ofAssociationstheMinistry Eventually attachtheService inaddition of fi rst instance,and thatwouldbeforfreeorasymbolicfee; Create aregisterofassociationsthat,forgoodpublicity, wouldbekept,atleasttemporarily, attheClerk’s Offi ceofthec Neighbourhood Policyanditmustbecomplimented; conclusion oftheAssociationAgreementbetweenLebanonand EuropeanUnion,intheframeworkof policies ofpublicinterest.AssociationsweresolicitedforadvicetheformulationActionPlanattime Ensure, bywayofanadequateconsultationsystem,theparticipationassociationstodecision-makingprocesson diversifi ed object,andestablishmoreobjectivecriteria. Social Affairsinviolationofthelaw. Thelabellingofpublic utility associationsshouldbenefi t associationswithamore of issued bytheCouncilofMinistersonadviceStateCouncil,butthatisbeinggrantedtodayministry Implement article17ofthelawonassociationsregardinglabelpublicassociationthatshouldbegivenbydecree manner; discriminatory Introduce thenotionofministerialconsentsothatStatecouldsubsidiseassociationsinanobjectiveandnon- constitution setsmajorityat18years. Abrogate partofarticle5thelawonassociationsregardingtomembers’age.Thisisunconstitutionalsince oftheaalmwakhaba. any proofofdeclarationwithoutwaitingforthedelivery Send acirculartoallotherministriesandbanksaskingthemdealwiththeassociationasmoralpersonalityaccept the aalmwakhabar; Put anendtotheinvestigationsofGeneralSecurity, of StateSecurityorInternalForcespriorto thedelivery oftheaalmwakhabr; Put anendtoablatantclientelisminthedelivery motivated andunexplained; Ensure theregistrationofassociationifdelaysindeliveringaalmwakhabararenotlegallyrespected, oftheaalmwakhabarisnotsubmittedtopublicationinoffiEnsure thatthedelivery cial Gazette; benefi t fromalladvantagesthatareattributedtodeclaredassociations; distinction betweendeclaredandnon-declaredassociations,thelatternotenjoyingmoralpersonalitystatusunableto Cancel allprovisionspertainingtosecretassociationssincethisnotionhasbecomeobsoleteandadoptinsteadthe complaint mechanism. or membershiptoanationalminorityinallmatterspertainingtheorganizationsofcivilsociety;setupanadequate Eliminate allformsofdiscriminationbasedon,interalia,gender, race,language,religion,politicalopinionssexualorienta Ensure thatbothversionsoftheConstitutionaresimilarinFrenchandArabicregarding“Freedomassociation”; jurisprudence oftheUnitedNationsCommitteeonHumanRights; set forthintheotherinternationalinstrumentsonhumanrightsratifi ed byLebanon,andtotakeintoaccounttherelevant Act inconformitywiththeprovisionsofInternationalCovenantonCivilandPoliticalRightsnormsprinciples to the tions ourt

RECOMMENDATIONS Freedom of association in Libya

Introduction

ENABLING ENVIRONMENT OF CIVIL devoted to the suppression of any political party or group that SOCIETY - “THE GENERAL SETTING” pursues ideals that are at variance with those of the Revolution. Furthermore, it criminalizes any form of cooperation with these 1 – Political, democratic and human rights specifi c groups, some of which are explicitly assimilated to enemies contexts of the State, such as communists, atheists, members of the Muslim Brotherhood, advocates of capitalism and agents of The political system of Libya is unique and, within the Euro- Western propaganda. Mediterranean region, highly differentiated by the fact that it does not have an independent civil society. The number In the Green book published in 1975, Qadhafi rejected the of restrictions and limitations to the exercise of freedom of concept of representative democracy and called for the association is extremely high. establishment of a system of direct democracy based on “people’s committees”. In reality, these “people’s committees” On September 1, 1969, a military coup (known as the al-Fatih have become a tool for oppression in the hands of an autocratic Revolution) led by colonel Muammar al-Qadhafi overthrew King regime. Idris and abolished the monarchy. Initially, the country was governed by a Revolutionary Command Council (RCC) which In order to project a more acceptable image of the regime proclaimed the Libyan Arab Republic. On December 11, 1969, internationally, the People’s General Congress adopted in June the RCC issued a Constitutional Proclamation that guaranteed 1988 a “Green Charter of Human Rights of the Jamahiriya fundamental rights, such as the rights to work, to health, to Era”. That Charter promoted the independence of the judiciary, education, to religious freedom and to the inviolability of one’s freedom of thought, gender equality and prohibited any penalty home. However, in the case of the freedoms of expression and that violated the dignity and the integrity of the individual (the opinion, the Proclamation stated that they were guaranteed abolition of the death penalty was even envisioned). “within the limits of public interest and the principles of the Revolution”. In 1971, the RCC established the one-party system During the last three years, the Libyan government has adopted under the name of Arab Socialist Union (ASU). This was to be a series of measures aimed at convincing the international confi rmed by a law adopted in 1972, known as Law 71. This law community that Libya was making genuine progress in the fi eld prohibits all political entities or groups from advocating any other of human rights. For instance, the People’s general committee doctrine and principles than those of the al-Fatih Revolution of for public security and justice was divided in two separate 1969. Article 3 of Law 71 provides for the death penalty for departments, with the aim of guaranteeing the independence of individuals who create, join or support political groups prohibited the judiciary. The People’s Court, which had become notorious by law. Hundreds of Libyans have been imprisoned, and some for its systematic violation of the right to a fair trial, was dissolved condemned to death, for having contravened that rule.1 in 2005. The latest measure taken was the freeing of long- term political prisoners, including 86 members of the Muslim On April 15, 1973, in the course of a public celebration in Zwara, Brotherhood. However, Qadhafi and his entourage appear little Qadhafi expounded his fi ve-point program (al-Niqat al-Khams) inclined to implement a real reform, in particular as regard to the “to further the Al-Fatih Revolution”. This program proclaims the freedoms of expression and association, which would threaten necessity of a “cultural revolution” to allow the Libyan people to to lessen their grip on power, which has lasted more than three govern themselves. However, the second of the fi ve points is decades.

1 Human Rights Watch, «Libya: Words to Deeds, The Urgent Need for Human Rights Reform», January 2006 p.13. See http://hrw.org/reports/2006/libya0106/libya0106web.pdf.

57 Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 58 2 That lawwasneverimplemented in practice. the legitimatesobjectivesforwhichthoseinstitutionswereestablished and charitableassociationsinordertoprotecttheirinterestsorachieve to setupandjoinunions,leagues,socialprofessionalfederations which guaranteesfreedomofexpression,statesthatcitizensarefree opinions bywayofincitation,force,intimidationorfraud.Article9, ideas andopinionssecretlyortoattemptimposesuch or forpersonalends.Italsostatesthatitisprohibitedtopromote unless theyabusethatrightinordertoeludethePeople’s authority be preventedfromexercisingtherighttoexpresstheiropinioninpublic, guarantees freedom ofexpression and Article 8ofLaw20onthestrengthening offreedoms (1991) to defendtheirprofessionalinterests that thepeopleare “ Article 6oftheGreat Green CharteronHumanRights states Africa. well astheProtocol ofthesameCharteronWomen’s Rights in setting uptheAfricanCourtonHumanandPeople’s Rights,as Protocol oftheAfricanCharteronHumanandPeople’s Rights and Welfare oftheChild,ArabCharteronHumanRights, the Human andPeople’s Rights,theAfricanCharteronRights human rightsinstruments,inparticulartheAfricanCharteron At theregional level,Libyaisalsoasignatorystateofseveral Nations tomakeevaluationvisitsthecountry. has oftenrefused toallowspecialized agenciesoftheUnited A certainnumberorreservations pertaintoIsrael.Finally, Libya against women(onlyapplied“inconformitywithIslamicLaw”). the Conventiononeliminationofallformsdiscrimination the Conventiononresolution ofconﬂ ictsbetweenstatesand conventions, inparticularregarding commitmentsderivingfrom has mademajorreservations whenitsignedanumberofthose and theongoingpracticesofauthorities.Furthermore, Libya legislation remained adeadletterwhenonelooksattheinternal human rights.Itisclearthatadherence tothoseinstrumentshas Libya hassignedallmajorUnitedNationsconventionson 2 –Legislation Unions, allcloselysupervisedbythegovernment. of Agriculture, andtheGeneralFederationofProducers Labour Federation ofChambersTrade, theFederationofChambers Unions, theFederationofChambersCommerce, the representation islimitedtotheNationalFederationofLabour tightly controlled bytherevolutionary committees.Workers’ authorized. Inpractice,thefewassociationsinexistenceare that “defendtheprofessional interests oftheirmembers”are association andassemblyare unnecessary. Onlyassociations where “People’s power”isparamount,thefreedoms of Generally, maintainsthatinapoliticalsystem thegovernment The Lawonthecodeofhonour, adoptedinMarch 1997, Human Rights Watch, « Libya: Words toDeeds, The UrgentNeedfor HumanRightsReform free toformunions,tradeunionsandleagues ”. states thatcitizensshallnot 2

. », 2006, January p. 7. See http://hrw.org/reports/2006/libya0106/libya0106web.pdf which amendedLaw111adoptedin1970. Freedom byLaw19of2003, ofassociationisnowgoverned imprisonment. isliableto10years at alteringtheexistingsystemofgovernment Anyone whopromotes inanywayprinciplesortheoriesthataim FORMATION ANDINCORPORATION Part I: law orwhoseobjectivesactivities administers orfi nances anygroup orassociationprohibited by the deathpenaltyforanyonewhosupports,creates, joins, prohibited bylaw(Article3).ThePenalCodealsoprovides for penalty foranyonewhocreates, joinsorsupportsanassociation ideas thatunderminetheRevolution,andprovides forthedeath 71 of1972prohibits theformationofanygroup thatpromotes with theprinciplesofal-FatihRevolution.Forinstance,Law the formationofassociationsbasedonanideologyatvariance Charter ofHumanRights,Law20,aswellotherlaws,prohibit Proclamation of1969,theDeclarationPeople’s Power, the various restrictions writtendownintheConstitutional weapons orattemptstosubvert“People’s power”.Furthermore, groups guiltyofterrorism, actsofviolence,illegalpossession communities thathaveprotected orassistedindividuals authorizes thecollectivepunishmentoftribes,familiesand at least50.Afeeof50dinarsmust bepaidforeachrequest. document signedbyallfounding members,whomustnumber Under Law19of2003,anassociationmustpresent aregistration number ofincorporators)? 4 –Howeasyordiffi association contravenetheprinciplesofRevolution. The registration request mayberejected iftheobjectivesof (e.g. race, security, religion, politics)? 3 –Whatare thebases uponwhichregistration canberejected apply tothePeople’s GeneralCongress. General People’s Congress. associationmust Aninternational association mustlodgearequest withthesecretariat ofthe with theregional People’s GeneralCongress, whileanational Aregionalinternational). associationmustlodgearequest depending onthetypeofassociation(regional, nationalor Different bodieshaveauthorityovertheregistration process information/notifi 2 –Istheregistration systembasedonlicensingorsimple Libya. Undeclared orunregistered associationsare notallowedin associations? 1 –Doesthesystemallowfornon-declared orunincorporated cation? cult istheregistration (e.g. time, cost, undermine thegovernment . ASSOCIATION ANDOPERATION Part III: “ to dissolveanyassociationthattheyconsiderathreat tothe Committees, “ association foramaximumperiodof30days.TheRevolutionary an amalgamation,theymayclosedownthepremises ofan without havingtoinformtheirmembers.Inpreparation forsuch may mergeseveralassociationsiftheypursuethesamegoal, secretary oftheGPCorthatlocalPeople’s Committee to runtheassociationifitsexecutivecommitteeisdissolved.The committee suspend anydecisiontakenbytheassociationoritsexecutive theactivitiesofanyassociation.Thesecurityunitmay to supervise (PGC), orthatofthelocalPeople’s Congresses,havethepower 19 statesthat contravenes theprinciplesofRevolution.Article30Law An associationmaybesuspendedforanyactivitythat DISSOLUTION ANDSUSPENSION Part II: There are none. is denied, delayed (e.g. judicial, administrative)? 5 –Are there effective remedies inthecaseswhere registration is seldomrespected. Therevolutionary committees’maintask may leavetheassociationatanytime.Infact,thatprovision Article 5ofLaw19stipulatesthatmembersanassociation or leave associations? 2 –Howstrictisthelevel offreedom ofmemberstoadhere to of theassociations. revolutionary committeessupervise andcontrol alltheactivities The government-controlled unions)tothegovernment. All existingassociationsare linkeddirectly orindirectly (through do notallowfortheestablishmentofindependentassociations. principles oftheRevolutionare seenasillegal.Suchrestrictions the statutesandrulesofanassociationthatdonotpromote the Inpractice, orientations, policiesandactionofthegovernment. may existaslongtheydonotundermineinanywaythe the principlesofRevolution.Inotherword, associations their association,provided thosegoalsare notatvariance with statutes andrulesdeterminethegoalobjectivesof Members ofanassociationmaydraftandamendtheirown own object(Are such documentsimposed?towhatextent?) amend theirownstatutesandby-laws andtodeterminetheir 1 –Whatistheextentoffreedom ofmemberstodraft and authority ofthepeople . ThesamelawallowsthePGCtosetupacommittee the securityunitofPeople’s GeneralCommittee protectors oftheRevolution ”. ”, havethepower international travel) restricted inanyway? private andpublicmeetings, tomove freely (including 5 –Istheassociation’s righttofreely assembleororganize principles oftheRevolution. the factthatthosemaynotcontraveneorbeatvariancewith The freedom todecideonprojects andactivitiesisrestricted by decide onprojects andactivities?Ifyes, howandwhy? 4 –Are there anyinterference inthefreedom ofassociationsto federations. through therevolutionary committeesorgovernment-controlled as wellthewishesofitsmembers.Thisinterference occurs protocols, disregarding thestatutesandrulesofassociation, associations andimposeitsownmanagementteam mayinterfererulesof The government withtheinternal “supervisors”, elections? attendance ofmeetings(Board, General assemblies)by 3 –Isthere anyinterference inthecorporate bodies:e.g. faces thesamepenalty. associationinLibyabysupplyingfalseinformation international prior authorization.Anyonewhocreates, organizesorrunan associationinLibyawithout anyone whosetupaninternational of thePenalCodemakesprovision foraprisonsentence associationsistightlycontrolled.with international Article208 associations insideLibya.However, cooperatingandnetworking Associations maycooperateandestablishnetworkwithother with otherslimited(bothdomesticandinternational)? 7 –Isthefreedom ofassociationstocooperate andnetwork regulated andcontrolled bythegovernment. sites.Allthesemediaareto publishordevelopinternet tightly Associations donothavefree accesstothemedia,norright develop internetsites)? right tofreely communicate (e.g. accesstomedia, publishand 6 –Are associations subjectedtospecifi level)isalsosubjecttopriorauthorization. international travel onbehalfofanassociation(attheregional, nationaland Moreover,without thepriorauthorizationofgovernment. any Libyan associationsmaynotorganizeprivateorpublicmeetings pressure, etc.). one’s job,blacklists,impactonfamilymembers,threats, social and rely oncoercive practicestoachievethatgoal(risklose therefore pressure thepopulationtojoinoffi cial associations, is toincitethepopulationparticipateRevolution c limitationontheir . They 59

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 60 3 secretary ofthePeople’s General Congress (PGC). available tothesecretary ofthelocalPeople’s Congress or the public. Ontheotherhand,theymustmakethoseaccounts The lawdoesnotrequire theassociationstomaketheiraccounts to thepublic? 1 -Are accounts and otherinformationtransparently available AND TRANSPARENCY CONTROL AUTHORITY, GOVERNANCE Part V: All existingassociationsare fi nanced bythegovernment. these processes prone todiscrimination? 4 -Are publicfunds madeavailable toassociations?How?Are Law 19issilentregarding anytaxbenefi ts forassociations. conditions? 3 -Doassociationsbenefi isverysuspiciousofanyforeignThe government funding.3 foreign sources withoutpriorauthorizationbythegovernment. Libyan associationsare notallowedtoreceive fundsfrom 2 -Are there specifi at thetimeofitsformation. prohibits anassociationfrom raisingfundsbyanymean,except fees, theincomefrom itsactivitiesandofdonations,Article15 budget oftheassociationsismadeannualmembership associations toreceive funds.WhileArticle11statesthatthe Law 19clearlysetforththerulespertainingtorightof and ownproperty andfunds?How? 1 -Are there anylimitationontheright ofassociationstoreceive FUNDING ANDTAXATION Part IV: Ibid. p. 43.

c limitationsonreceiving foreign funds? t from taxbenefi ts? Underwhat RECOMMENDATIONS • • Putanendthepressureappliedonpopulationtoincitepeople tojoinoffi cial associations; 3. With regardtothe climaterequiredforthesustainabledevelopmentofcivilsociety • Liftallexistingrestrictionslimitingaccesstoforeignfi nancing. • Funding andTaxation • Liftallrestrictionslimitingtherightofassociationstocooperateand establishnetworksinLibya. • AllowinternationalorganizationstooperateinLibyaunderthesame conditionsgrantedtonationalassociations; • • Putanendtotherestrictionslimitingaccesstelephone,faxorinternetservices; • Abolishtheobligationtoobtainpriorauthorizationfromauthoritiesforholdingprivateorpublicmeetings; • Authorizeassociationstodraftandmodifytheirstatutesdecideonprojectsfreely; • Organization andOperations • Prohibittheauthoritytoarbitrarilyordermergeofassociations. • Dissolution andSuspension • Ensurethatassociationshaveaccesstojudicialremediesagainstdecisionsoftheauthorities. • • • Establishatransparentandimpartialregistrationsystem; • Reducetotwothenumberoffoundingmembersrequiredformanassociation; Formation andIncorporation • • 2. With regardtothelawsandpracticespertainingassociationscivilsocietyorganizations • • • • • 1. With regardtothepolitical,democraticandhumanrightssituation THE LIBYAN GOVERNMENTISCALLEDUPONTO: their righttoafairtrial. Free allhumanrightsdefendersandmembersofassociationsthatare arbitrarilydetainedandguarantee,iftheneedarises, to raisefunds,inorderestablishafairandimpartialsystemofaccess tofunding; Amend theprovisionsofLawNo.192003pertainingtofi nancing ofassociations,inparticularthoselimitingtheright refusaltoleavethecountry; arbitrary Guarantee therightofmembersassociationstotravelfreelyandputanendconfi scation ofpassportsandthe associations, whetherthatinterferenceisdirectorcarriedonundertheguiseofjudicialproceedings; committees,intheinternalaffair interferenceoftheauthorities,inparticularrevolutionary Put anendtothearbitrary to theprinciplesofRevolution”,ordeemedathreat“theauthoritypeople”; Abrogate allprovisionsthatallowtheauthoritiestodissolveanassociationongroundsitsactivitiesare“contrary will begovernedbythesamerules; Ensure thattheregistrationofmodifi cations tothestatutesofanassociationandchangeswithin itscorporatebodies of notfollowinguponrequestdeposits; registered letterwithreceiptofreception,affi davit drawnupbyabailiff,etc),inordertoputanendthecurrentpract Ensure, inparticular, thatthedepositofaregistrationrequestcouldbeproveninvariousways(administrative stamp, to therepressionofindependentassociativeactivities(art.173,174,176,206,207,and208). No. 20of1991,theCodeHonourMarch1997,Law711972andprovisionsPenalpertaining Rights (inparticular, articles19,21,and22pertainingtothefreedomsofassociationexpression),amongothers,Law Void tothespiritandletterofInternationalCovenantonCivilPolitic alllawsandregulationsthatarecontrary guaranteed only“withinthelimitsofpublicinterestandRevolution”; Void allthedeclarationsandprovisionswhereitismentionedthatfundamentalindividualcollectivefreedomsare Abrogate allprovisionsthatcriminalizetheactivitiesofpoliticalpartiesandassociations. pertainingtoanumberofprovisionstheinternationalconventions signedbyLibya; Lift allreservations by referendumonthebasisofasecretballot; In particular, draftaConstitutionrespectfuloffundamentalrightsthatwillbesubmittedtotheLibyanpeopleforapproval international commitmentsundertakenbyLibya; Accordingly, initiateaprocessofreformwiththeaimtransposingintonationallawandinstitutionsLibyaall jurisprudence oftheUnitedNationsCommitteeonHumanRights; ples setforthintheotherinternationalinstrumentsonhumanrightsratifi ed byLibya,andtotakeintoaccounttherelevant Act inconformitywiththeprovisionsofInternationalCovenantonCivilandPoliticalRightsnormsprinci- s of ice al 61

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Freedom of association in Morocco

Introduction

ENABLING ENVIRONMENT OF CIVIL and the activities of associations were seriously hindered by SOCIETY - “THE GENERAL SETTING” government action. Between 1973 and 2002, the government was vested with the authority to unilaterally suspend or dissolve an association by decree on the same grounds that a suspension or dissolution 1 - Civil society landscape could be effected through the judicial process, namely: the objectives of the association (Article 3) ; in case the founding In the Constitution of 1962, Morocco is defi ned as a “constitutional, members or the corporate bodies of the association did not democratic and social monarchy”. King Mohammed VI, on the follow the required procedures when setting up the association ; throne since 1999, is “the supreme representative of the Nation “generally, if it appears that the activities of the association may and Commander of the faithful”. The King chairs the council of threaten public order”, a provision prone to the exercise of ministers, promulgates the laws, signs and ratifi es international arbitrary power in practice. treaties. He is the supreme commander of the armed forces and chairs the Superior Council of the judiciary. Even if the Constitution The attitude of the authorities changed during the 1990s, provides for the separation of powers, the Sovereign retains a although changes in the legislation only came in 2002. Now, number of major executive prerogatives and exercises a certain an association may be dissolved by a tribunal if its objectives degree of legislative power.1 are deemed illegal, contrary to public morality, discriminatory or risk undermining the Muslim religion, territorial integrity or the The dahir of May 21, 1914, inspired by the French legislation monarchy. of 1901, established the legal framework for contemporary associations in Morocco. Associations may take many forms: The push for democracy, particularly strong in the aftermath - Associations of the types provided for in the dahir of 1958 on of Independence, soon brought about the adoption of the the freedom of association 2; Code of Public Liberties (Code des libertés publiques). With - Association unions and federations, associations recognized the encouragement of early governments, the associative as being in the public interest (ARUP), foreign-based movement spread quickly. organizations, political parties and organizations of a political The Constitution of 1962 (amended several times since nature, combat groups and militias governed by dispensatory its adoption) enshrines the freedom of association as a or complementary regulations; constitutional right. - urban landowners’ unions, education and sports associations, irrigation network users’ associations, professional associations With the outset of political unrest in the late 1960s - the so-called of banking and credit institutions and micro-credit associations années de plombs - the three dahirs on which rested the Code governed by the dispensatory regime provided for in the dahir of public liberties were amended. It became no longer possible of 1958, in particular pertaining to membership, withdrawal, to form an association without prior authorization as it had been operations and patrimony; the case previously. Non-observance of the new legislative - So-called “Gongo” NGOs relied upon by the authorities to carry restrictions was punishable by law and the government was out a number of activities in the fi eld of social work, protection given the authority to suspend or dissolve existing associations. of children against violence, etc. uring that period, the associative movement suffered a setback

1 Working documents of the Commission, COM(2004)373 ﬁ nal 2 Some of the major human rights NGOs of Morocco are: l’Association marocaine des droits Humains (AMDH), l’Espace Associatif and l’Organisation marocaine des droits Humains (OMDH).

62 association. in 2004,whichfocusontheimplementationoffreedom of the outcomeofanadvocacyanddialogueprocess, initiated created initiativeis attheendof2006.Thisnon-governmental The of theassociativemovementhasbeendeveloped. consultation process thattheproject todraftanethical charter pointed outthatitisintheframeworkofinter-association policies andterritoriallocalcommunities.Itshouldbe partnerships withassociations,atthelevelofgovernment and atputtinginplaceanimpartialprocedure forcreating their capacitytobettercontributethedevelopmentofsociety, improving the“qualifi cation” ofassociationsinorder toimprove movement itself.Thistwo-tiered consultationprocess aims at Development andSolidarity, aswellwithintheassociative between theassociativemovementandMinistryofSocial A consultationprocess beganduringthesecondhalfof2006 association asbeinginthepublicinterest. associations andtheprocedure fortheoffi cial recognition ofan the declarationprocedure, thelegalcapacityofdeclared restrictions andbringssomechangespertainingto,inparticular, rules onassociation.Theamendmentof2002mitigatesthose an associationandincreased thepenaltiesforviolationsof 1973, authorizedtheadministrativesuspensionordissolutionof 15, 1958),amendedtwicesincethen.Thefi rst amendment,in Associations are byDahirNo1-58-376(November governed Article 9oftheConstitution. At thenationallevel,freedom ofassociationisenshrinedby standards.since then,itstilldoesnotfullymeetinternational the nationallegislationhasbeenmodifi ed anumberoftimes the ILOonlabourunionsandcollectiveagreements (1949).While Covenant onCivilandPoliticalRightsConventionNo98of Morocco hasratifi ed, withoutreservations, theInternational 2 -Legislation 6 (declarationprocedure). an association,undertakesanyoftheactivitiesprovidedforinArticle imposes sanctions subject toasystemofpriordeclaration Article 5oftheDahirApril10,1973, associations? 1 –Doesthesystemallowfornon-declared orunincorporated FORMATION ANDINCORPORATION Part I: Observatoire marocaindeslibertéspubliques Observatoire on anyonewho,followingtheincorporationof Onemayconcludefrom the wording . However, thelawof2002 states thatassociationsare (OMLB)was receipt onJune16,2006. pour lacitoyenneté,created inJuly2002,onlyobtainedits refuse toissuethereceipt. Forinstance,theRéseauAmazigh against terrorism orprotection ofterritorialintegrity, occasionally authorities, invokingtheneedtoprotect publicsecurity, thefi ght change inthelawhasnotbrought theexpectedresults since the statutes are subjecttothe same procedure. However, this its activitiesinconformitywithstatutes sixty daysofthedeclaration“ provisional receipt ofdeclaration,andapermanentreceipt within The reform of2002provides fortheobligatoryissuance ofa stamps. of thecorporatebodies,etc.Theonlyexpensesare thefi scal name andobjectoftheassociation,namesmembers Dahir specifi es whatinformationshouldbeprovided: corporate headquarters oftheassociationislocated.Article5 local administrativeauthoritiesofthejurisdictionwhere the an association.Thedeclarationmustbemadewiththe The involvementoftwoindividualsissuffi cient tocreate number ofincorporators)? 4 –Howeasyordiffi terrorism orprotection ofterritorialintegrity. block thedeclarationbyinvokingpublicsecurity, thefight against process gothrough. However, theauthoritieswilloccasionally it appearsthatwouldbediffi cult nottoallowthedeclaration of aprovisional receipt oncetheassociationhasbeendeclared, Since thereform of2002provides fortheautomaticissuance (e.g. race, security, religion, politics)? 3 –Whatare thebasesuponwhichregistration canberejected The authoritiesmustjustifytheirrefusal whenevertheyrefuse to days ofthedeclaration,associationmaybeginitsoperations. In theeventthatauthoritieshavetakennoactionwithin60 is denied, delayed (e.g. judicial, administrative)? 5 –Are there effective remedies inthecaseswhere registration are subjecttoapriordeclaration provided theyconformtotheprovisions ofArticle5( persons maybefreely created withoutpriorauthorization, According toArticle2oftheDahir1958,associations information/notifi 2 –Istheregistration systembased onlicensingorsimple subject tocaution. has notbeenmodifi ed andisstillinforce, thisinterpretation is activities. However, sinceArticle5oftheDahirApril1973 provided theydonotundertakeactivitiessuchtheday-to-day of thatprovision thatnon-declared associationare authorized, cation? cult istheregistration (e.g. time, cost, otherwise theassociationmaybegin ). ”. Modifi cations ofthe association 63

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 64 and afi ne ofbetween10,000to20,000dirhams. such anassociationisliabletoajailtermofonesixmonths re-forms theassociationorfacilitates thereunion ofmembers Once anassociationhasbeendissolved,anypersonwhoillegally An associationmayappealajudicialdecisionofdissolution. for charitableorotherpublicassistanceprojects. has obtainedpublicfundsare awarded totheState,beused dissolution isimplemented.Theassetsofanassociationthat In itsdecision,thecourtsetforthmannerinwhich for byitsstatutes(Article36). of thelaw discriminatory, underminestheMuslimfaith,whenitis morality, territorialintegrityorthemonarchy; whenitsactionis goals oftheassociationare illegal orunderminethelaw, public and incasesfornullifi cation provided forinArticle3:whenthe Since then,adissolutionmayonlyoccurbyjudicialdecision, administrative decision,allowedin1973,isnolongerpermitted. Following thereform of2002, thedissolutionofanassociationby DISSOLUTION ANDSUSPENSION Part II: There aretotheassociation. nolegalalternatives company, atrust, aWakf)? and incorporate anassociationisdenied(e.g. incorporation asa 7 –Are there otherviablealternatives iftheright tofreely form himself/herself withacourtaction. by thepublicprosecutor, orincasethevictimhasassociated time oftheevents,andthatpubliclawsuithasbeeninitiated provided theassociationhasexistedforatleastfi ve yearsatthe being inthepublicinterest mayassociatewithacourtaction, of penalprocedure statesthatonlyassociationsrecognized as The sameappliesincaseofmoralprejudice. Thenewcode initiate acivilactionforanymaterialdamagesithassuffered. sector, etc.There istherefore nodoubtthattheassociationmay public funds,membershipfees,donationsfrom theprivate president, Article 6statesthatanydeclared associationmay, through its legal entity? 6 –Doesregistration automatically entailobtainingseparate administrative appealcourt. an administrativetribunaland,asthecasemaybe,before an association maylodgeanappealforabuseofpowerbefore not satisfytherequirements ofthelaw. Insuchcases,the issue areceipt whentheyconsiderthattheassociationdoes , orwhenitengagesintoactivitiesthatare notprovided fi le alawsuitorappearincourt,acquireandadminister inbreach presence representatives ofgovernment inthosebodies. reported. However, thestatutesmustprovide forthepotential No interference inthecorporatebodiesofassociationshasbeen “supervisors”, elections? attendance ofmeetings(Board, General assemblies)by 3 –Isthere anyinterference inthecorporate bodies:e.g. categories from belongingtoalabourunion. association. However, thelawdoesspecifi cally prohibit those that point,membersofthemilitaryandjudgesmaynotjoinan leave anassociation(Article4).Whilethelawisnotexpliciton Any individualwhopossesseslegalcapacityisfree tojoinor associations? 2 –Howstrictisthefreedom ofmemberstoadhere toorleave freedom ofcontract. and mustnotbediscriminatory. Theunderlyingprincipleis undermine theMuslimfaith,nationalintegrityormonarchy, they shouldnotbecontrarytothelawandpublicmoralityor The lawissilentregarding thestatutes,andmerely statesthan own object?(Are suchdocumentsimposed?towhatextent?) amend theirownstatutesandby-laws andtodeterminetheir 1 –Whatistheextentoffreedom ofmemberstodraft and ORGANIZATION ANDOPERATION Part III: issuance ofpassportshasrecently beenmadeeasier, thefree sites.Asthe communicate, topublishanddevelopinternet The lawissilentregarding therightofassociationto develop internet sites)? right tofreely communicate (e.g. accesstomedia, publishand 7 –Are associationssubjecttospecifi notifi ed priortotheholdingofapublicmeeting. regarding freedom ofassembly. Thelocalauthoritiesmustbe Associations are subjected tothesamerulesasindividuals international travel) restricted inanyway? private andpublicmeetings, tomove freely (including 6 –Istheassociation’s righttofreely assembleororganize Associations mayfreely decideonprojects andactivities. decide onprojects andactivities?Ifyes, howandwhy? 5 –Are there anyinterference inthefreedom ofassociationsto limits theparticipationbywomen. activities ofassociations.However, theweightoftraditionsstill There anolegalrestriction ontheparticipationofwomenin offi limiting orbanningparticipationofwomen inassociational 4 –Are there anyrestrictions (legalorde-facto)promoting, ces (e.g. theBoard)? c limitationontheir legal framework in line with international standards.legal frameworkinlinewithinternational association lawhadbeeninstrumentalinthedevelopmentofa country, aswelltheundertakingofacomparativestudyon since thelate1990s.Apublicdebateinseveralregions ofthe The associativemovementhasbeencallingforsuchareform implicated inthereform ofthelawonassociationsin2002. Ministry ofJusticein2003.Likewise,associationswere actively important changestothePenalCodewere considered bythe of sexualharassment,havebeentakenintoaccountwhen discrimination againstwomeninpenallawsandthecriminalization by theAssociationdémocratiquedesfemmesduMaroc on decision-making process. Forinstance,studiesundertaken Associations havebeenconsultedbytheauthoritiesduring nature andlevel ofsuchconsultations? participation indecidingonpublicinterest issues?Whatisthe 9 –Istheparticipationofassociationssoughtforopinionor right tosupervisetheiroperations. Moroccan associations.However, reserves thegovernment headquarters inMorocco) are subjectedtothesamerulesas half oftheirmembershipoutsidethecountrybuthave outside Morocco; whoseoffi cials are foreigners; orwhohave Foreign associations(associationswhoseheadquartersare impeding affi liation withregionalnetworks. orinternational the samerulesasassociations.Likewise,there are nobarriers set upunionsorfederations.Suchstructures are subjectedto Associations are free toaffi liate withanationalnetworkand others limited(bothdomesticandinternational)? 8 –Isthefreedom ofassociationstocooperate andnetwork with climate. That said,thesituationmaychange,dependingonpolitical movement ofmembersassociationsshouldnotbehindered. moveable or immoveable assets needed to carry outtheirmission moveable orimmoveableassetsneeded tocarry Associations recognized asbeing inthepublicinterest mayown within15daysprecedinggeneral ofthegovernment event. public interest mustpresent adeclarationtothesecretary- whileassociationsrecognizedgovernment, asbeinginthe must obtainanauthorizationfrom thesecretary-general ofthe limits setbylaw. Thus,associationsthatare merely declared activities, associationsmaycallforpublicdonations,withinthe organizations(Article6).Inorderinternational tofi nance their donations from privateindividuals, foreign associationsand Since 2002,associationsthatare merely declared mayreceive receive andownproperty andfunds?How? 1 –Are there anylimitationontherightsofassociationsto FUNDING ANDTAXATION Part IV: result inthejudicialdissolutionofassociation(Article32a). information onthedonor. Anybreach ofthisregulation may andspecifytheamountaswell general ofthegovernment, of thereception ofsuchfunds,declare themtothesecretary Associations thatreceive foreign fundsmust,within30 days 3 –Are there specifi 5 and6) annual report certifi ed byachartered accountant(Article9,par. must submittothesecretary-generalan ofthegovernment the publicinterest, andare setbyregulation. Thoseassociations are tighterinthecaseofassociationsrecognized asbeingin entities thatfallunderitssupervisorypower. Financialcontrols oversees theaccountsofassociationsthatreceive fundsfrom or otherpublicassistanceprojects. TheCourdescomptes assets are transferred totheState,beusedforcharitable entity thathasgrantedthemonies.Incaseofdissolution, entities mustsubmitabudgetandfi nancial statementtothe Associations thatperiodicallyreceive fundsfrom government the funds, otherthanby theconditionsoftheirgranting? 2 –Are there anylimitationsonthe rights ofassociationstouse It istobenotedthat,asregard thefi nancing ofassociations, granted thefunds,andbyCourdescomptes. of suchmoniesisinsureddepartmentthat by thegovernment Associations mayreceive publicfunding.Control overthe use those processes prone todiscrimination? 6 –Are publicfundsmadeavailable toassociations? How?Are exempted from municipaltaxes). deductible andbuildingshousingcharitableorganizationsare from additionalexemptions(donations incashorkindare tax Associations recognized asbeinginthepublicinterest benefi t in pursuanceoftheobjectivessetforththeirstatutes. the incometaxoncorporationforallactivitiesundertaken Associations are exemptedfrom payingtheVAT aswell conditions? 5 –Doassociationsbenefi authorities. It constitutesapermanentformofpressure onthem by the associations thatbenefi t from thenon-applicationoflaw. of areas. Thissituationmayrepresent arisk,inparticularfor The lawisimproperly appliedornotatallinanumber 4 –Howeffectively are theselimitationsonfundingenforced? by thePrimeMinister. it. Theauthorizationtakestheformofaministerialorder issued the associationmustobtainpriorauthorizationbefore acquiring end useofamoveableorimmoveableassetisnotdetermined, within thelimitssetbyrecognitiondecree c limitationsonreceiving foreign funds? t from taxbenefi (Article 10).Ifthe t? ne what Under ts?

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 66 tions parlespouvoirs publics etlescollectivitéslocales 3 Associations are heldlegallyresponsible (Article32). if anyforeign fundsithasreceived are notdeclared within30days. fi ned from 200to1,000 dirhams.Anassociationmaybedissolved Offi cials ofassociationsthatdonotfollowaccountingrulesmaybe measures are appliedincaseofviolations? 3 –Whatpenalties(e.g. criminal, fi provisions ofitsstatutes. fi nancial statement oftheassociation,inaccordance withthe During generalassemblies,membersare presented with a to thepublic? 2 –Are accounts and otherinformationtransparently available - - - There are three typesofcontrol: the Declaration)? authorities withtheprincipleoffreedom (checkprinciple16of security apparatus)? Howconsistentare theactivitiesofthese associations (e.g. courts, ministries, independentbodiesand 1 –Whatare thesupervisoryauthoritiesthatoversee AND TRANSPARENCY CONTROL AUTHORITY, GOVERNANCE Part V: asregardassociations andthegovernment funding be donetoremedy theunsatisfactoryrelationship betweenthe agenciesandtodeterminewhatcould place bygovernment of associations,tobetterunderstandthemechanismsputin has launchedaninitiativeinorder toidentifythefi nancial needs OneNGO,EspaceAssociatif, associations andthegovernment. many Moroccan associationscallforatruepartnershipbetween Forfulldetailsofthe variousmeasuresputforwardbyEspace Associatif forafair andeffectivepartnership, seeMémorandum accounting controls. dissolution; decision onarequests fordissolution andmayorder such a judicial control: thecourtoffi rst instancemayrender a (control onformalconditions); administrative control: atthetimeassociationisdeclared nes, etc) and harassment », October31, 2003. Available onrequestfromthesecretariat oftheEuro-MediterraneanHumanRights Network. 3 . « Pour unfi nancement durabledesassocia- RECOMMENDATIONS • Funding andTaxation • • Organization andOperation • Dissolution andSuspension • • Simplifytheadministrativeprocedureonformationandincorporationthatassociationsmustfollow; Formation andIncorporation • 2. With regardtothelawsandpracticespertainingassociationscivilsocietyorganizations • 1.With regardtothepolitical,democraticandhumanrightssituation ITHE MOROCCANGOVERNMENTISCALLEDUPONTO: advantages ofthatproceeding, whichisinitiating legalproceedings, since number ofassociations mayassociatethemselvesinacourtaction withthepublicprosecution. They alsodeprivetheassociatio proceedings initiatedbythepublicprosecutor orbythevictimassociatinghimself/herselfinacourtaction. Becauseofthese allowed thatright, providedtheyhavebeeninexistenceforatleastfouryears thetimeofevents. The actionisallow restrictive:action withthepublicprosecutor(constitution enpartiecivile)arevery onlyassociationsrecognizedasbeingi 2 1 challenge nowistoensuretheeffectiveapplication ofthelaw particular, thedahirsof11/15/1958and04/11/1973). As thatreform hassatisfi ed themaindemandsof associative communit The reformof2002putintoquestionthetoneandrepressiveaimpreviouslegislationonfreeexercisefreedomo The provisionsofthenewCodepenal procedure(promulgatedin2002)pertainingtothepossibilityforanassociation to as that thedecisionisnotifi ed inwriting. Process withinareasonabletimeallrequestsforanassociationtoberecognizedasbeinginthepublicinterestandensure and publicmeetings. Ensure theeffectiveimplementationoflawasregarddistinctionbetweenmeetingsmembersanassociation which theauthoritiesarenotaccountable being inthepublicinterest,andwhoserecognitiondoesnotfollowclearlyestablishedimplementedcriteriafor theaccessofassociationtocivilaction Widen judicial system,arestrictlyfollowed. Ensure thattheprovisionsofreformlaw2002,abolishadministrativedissolutionandentrusttaskto “on thespotasealedprovisionalreceipt”(article5,par. 1) Strictly applytheprovisionsoflawpertainingtoprocedureondeclaration:administrativeauthoritiesmustissue Ensure thattheexistinglawsarestrictlyapplied,inparticularwithregardtorespectoffreedomassociation. jurisprudence oftheUnitedNationsCommitteeon set forthintheotherinternationalinstrumentsonhumanrightsratifi ed byMorocco,andtotakeintoaccounttherelevant Act inconformitywiththeprovisionsofInternationalCovenantonCivilandPoliticalRightsnormsprinciples 2 : accesstocivilactionshouldnotbelimitedassociationsrecognizedas in theday-to-daypracticesoflocal, regionalandnational Human Rights an associationmayonly joinproceedingsthatarea ; able onlyiftherearealready authorities. restrictions, onlyasmall n thepublicinterestare lready ongoing. sociate itselfinacourt ns ofonethemain f association(in y, themain 1

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Freedom of association in Syria

Introduction

ENABLING ENVIRONMENT OF CIVIL The majority of associations undertook to obtain their SOCIETY - «THE GENERAL SETTING» registration after the adoption of Law 93 in 1958.2 However, only a small number of new associations have been able to register,

1 – Civil society landscape and those were affi liated to the party in power, the National Progressive Front. The manner in which public freedoms are exercised in Syria Depending on their sphere of activity, associations have been is tied to the political stability and the security situation of the classifi ed in four groups by the Ministry of Social Affairs and country. Above all, the authorities are preoccupied by the Labour: a) social associations; b) health associations; c) cultural security situation and, in their eyes, that preoccupation justifi es associations; d) associations for the protection of handicapped the maintenance of the state of emergency. The internal situation persons. It must be pointed out that this classifi cation does not is therefore kept under tight control and restrictions, both legal truly refl ect the activities of the associations. and de facto, are imposed on the formation of political parties and associations of civil society. As far as geographical distribution is concerned, the Register of associations shows that 40% of all associations (540 in 2001) The associative movement in Syria has been largely stagnant are located in Damascus, even if most of them have regional since the adoption in 1958 of Law 93 on associations. That law, offi ces in other parts of the country. Of the remaining 60%, 120 still in force, is inconsistent with the country’s basic laws, such are located in rural areas, while the remainder are spread among as the Constitution and the Civil Code. Apart from subjecting various cities, in particular Aleppo and Homs. the formation of an association to prior authorization, that law has allowed, in practice, the dissolution of a number of It should be noted that there is another group of associations associations and political parties. The State intervenes not only - important because of the scope of their activities and the at the formation and dissolution stage of associations, but also services they provide - that depend on ministries other than the in all of their activities. State interventionism has developed Ministry of Social Affairs and Labour.3 hand in hand with coercive policies. With the rise to power of the Arab Socialist Baath Party, so-called “people’s democratic Following the death of President Hafez Al Assad in 2001, institutions” have been put in place and fusions have been associative life in Syria was revived. Ten new associations were enforced by decree.1 created in 2001 alone. The total number of associations rose from 540 in 2001 to 1,012 in 2005, then doubled in three years to reach 1,400 in 2007.4

1 Such as the Farmers Union, the Youth and Revolution Union, the Baathist Vanguard, the General Union of Women. 2 The major associations were formed during that period: the Social Forum, Cinema Club, and Family Planning (created in 1973, it is one of the rare organizations that receive funding from outside the country; However the authorities have accused it of deviating from its set objectives and to promote permissive idea), the Seminar of Women, Friends of Damascus (heritage), the Syrian Universal Association (modern physics). There are also a number of associations such as the Youth Forum, the Association Hope, the Bardi Sports Club, and the Ligue des lauréats de France, etc. 3 In particular the association of tourist guides (Ministry of Tourism); the Syrian Red Crescent; rural development associations (Ministry of Agriculture); the Local Society Development Association (Ministry of Health), institutions that supply social services to the elderly, orphanages and kintergardens (municipal governments and local governorats); youth clubs and boy scouts (afﬁ liated to church groups); private clubs, such as the Armenian Fraternity, the Tcherkesse Association, the Golan Association 4 The Fourth « Summit of Arab Youth » held in Damascus at the initiative of the Organization of Arab Women on July 10-13, 2007 (information supplied by the Organi- zation of Arab Women).

68 for theliftingofstateemergency, theliberationofpolitical However, aftertheclosingbyauthoritiesofvariousclubs and forums, includingthe ATASSI forum, itsactivitieshavebeco is torevivecivilsocietybymeansofheighten publicawarenessabouttheassociativecultureandincitepopulationto get association, whichhasacoordinationcommittee, hasnoheadquartersandholdmeetingsinprivatehomes, ithascoordinationco region, aswell the Association forthefi ght a association foreconomicssciences, the Syrian Association insupporttomedicalresearchandleSyrianForumforbuildingsoft their actiononthedefenceandpromotion ofhumanrights development There are nowassociationsthatare activeinthefi elds ofhuman from theprotection oftheenvironment The sphere ofactivitythesenewassociationsvariesgreatly: 10 9 8 7 6 5 committees, including M. Sayf. The publicationoftheDamascusDeclaration onOctober16, 2005, hasbeenfollowedbyawave ofarrestsandrepressivemeasures rights andcultureconcerningSyrianwomen. not obtaineditsauthorization;Syrian Association forblindwomen(ELWIAM) aswellaninternetwebsitecalled the Syrianwo authorization waswithdrawn, followingdiscussionsonthepersonalstatus accommodate handicappedpersonsonapermanentbasis, aspecializedschoolsnetworkandmedicalservices. Association forsocialinitiative. The of SocialAffairs andLabour, alonedeterminestheextentof is establishedbylaw, inparticulartheMinistry thegovernment, Although theprimacyofConstitutionovernationalnorms political partiesmaybeformedunderthesameprinciple. their existence,andneednotbeauthorized Constitution, to publicorder andmorality. According toArticle17ofthe associations, subjecttolimitationsdeterminedbylawpertaining The Constitutionof1950enshrinedtherighttocreate 2 -Legislation and theSyrianAssociationforHumanRights(Swasiah,2004). Rights Centre ForFreedom ofExpression andTheMedia(2006) Press (Hurriat),AlatasiForum(2003),Human andJournalists (2001), NationalCentre ForTheDefenceofFreedom ofthe For HumanRights(2005),AssociationinSyria Human RightsandFreedoms (DAD,2006),Kurdish Committee Syrian Centre ForLegalStudies(2006),Kurdish Associationfor studies ofhumanrights(2006),CenterforFreedom (2005), of HumanRights(NOHR,2006),DamascusCenterforthe Association ofSyria(AHORS,2004),National Human RightsAssociationofSyria(2001),Arab freedoms andhumanrightsinSyria(CDF, 1989),HRAS, of whomare registered: Committeesofdefencedemocratic The followingare someactivehumanrightsassociations,none As anexample: theCommitteeforrenewalofcivilsociety. Among thoseassociations : theGeneralUnionof Women, theSyrian Women League, the Association forsocialinitiative(thisas The Nabk Association strivestoputinplaceadevelopmentprojectatthelocationoflargelandfi ll. The FamilyandFratern The Association ofsocialworkers, the Association fortheprotectionof theconsumersand Association forroadsafety, th Examples: the Association fortheprotectionofNature, Na HereafterLawn°93 of1958. associations needonlybedeclared,thatis,publicize 7 andgenderissues Ligue deslauréatsdeFrance 8 . Ontheotherhand,fewfocus gainst corruption, whichhasnotyetbeen grantedanauthorization. 5 tovarioussocialissues . Article18statesthat tional associationforspreadingsocialvalues, Associations thatf is anewNGOcreatedbygroupoflawyerswhosegoaltostudytheUNresolutions thatfocusonour That association, createdbyagroupofSyrianintellectuals prisoners, therepealofLawNo. 93andrespectforthe 9 in Syria);the Association forcombatingviolenceaga . 6 . FORMATION ANDINCORPORATION Part I: - - - Laws anddecreesassociations governing practice, makeamockeryoftheprovisions oftheConstitution. society byinvokingtheprovisions ofLaw931958that,in Ministry hasputinplaceasystemofunlimitedcontrol overcivil exercise ofthefreedoms ofassociationandexpression. The months andafi ne. non-declared associationsare punishablebyajailtermofthree 71 ofLawn°93onassociations,anyactivitiescarriedoutby Non-declared associationsare notallowed.According toArticle associations? 1 –Doesthesystemallowfornon-declared orunincorporated associations and tightening government controlassociations andtighteninggovernment evenmore. n° 224ofSeptember21,1969amendingthelegislationon by decisionn°1330ofOctober13,1958andlegislativedecree The enablingregulations ofLawn°93onassociations,enforced decree n°93of1958andpublishedJuly8,1958. The Lawonassociationsandprivateinstitutions,enforced by 1). Suchoffences are dealtwithbymilitarytribunals. any way, hinderstheapplicationofsociallegislation January 7,1965, offenders handedovertomilitarytribunals.Decree n°6of The scopeoftherestrictions maybeexpandedifneedand restrictions onthefreedom ofindividuals(Article4decree). March 9,1963,authorizestheMinisterofInteriortoimpose 51 ofDecember22,1962,andamendedbydecree n°1of The LawontheStateofEmergency, adoptedbydecree n° provides forthepunishmentofanyonewho,in ocus onscientific researchsuchastheSyrian freedom ofthepressandpoliticalparties. had developedintoasocialmovement. The me morepoliticallyoriented. The ONGask involvedtoimproveitslivingstandards. ware. men website, thatfocuses on issuesof inst women, createdin2001, hasstill sociation wasrecentlybannedandits e Association forchildrightsandthe mmittees intheregions. Itobjective ity Association headaprojectto againsttheleadershipofthese 10 (Article 69

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 70 14 13 12 11 its memberscondemnedtohard labour. or thefundamentalinstitutionsofsocietywillbedissolvedand aim ofchangingtheeconomicorsocialstructures oftheState, Article 304ofthePenalCode,anyassociationcreated withthe extent theyareneeded importance oftheassociation’s objectivesanddeterminetowhat the StateofEmergencyauthorizesMinistry“ refusal are atthediscretion oftheauthoritiessinceLawon the foundingmembersofassociation.Thegrounds for agencies, whichthenproceed toanin-depthinvestigationof Social Affairs andLabourthentransmittedtothesecurity and security. Therequest isfi rst examinedbytheMinistryof The grounds forarefusal are primarilybasedonpolitics (e.g. race, security, religion, politics)? 3 –Whatare thebases uponwhichregistration canberejected decision. the Ministryconsultswithsecuritybodiesbefore takinga 60 daystostudytherequest andacceptorreject it.Inpractice, documents. TheMinistryofSocialAffairs andLabourthenhas lodge aregistration request accompaniedwithspecifi c legal a register setuptothateffect. Thefoundingmembersmust Syrian lawstatesthatassociationsmustgetregistered on therefore anauthorizationsystem. authorization from acompetentauthority(Article26).Itis Associations andprivateinstitutionsmustobtainawritten information/notifi 2 –Istheregistration systembased onlicensingorsimple 2005 after havingsignedtheDeclarationofDamascusOctober16, founder oftheCentre, AnouarAlBunni,hadbeenimprisoned down bytheauthoritiesonopeningdayinMarch 2006.The European Union,theSyrianCentre forLegalStudieswasclosed As anexample,inspiteoffi nancial supportgrantedbythe because oftheirongoingactivities. to operateillegallyandarebytheauthorities issuedwarnings and Labourtoregister them.Therefore, thoseNGOscontinue due tothesystematicrefusal oftheMinistrySocialAffairs All thehumanrightsassociationslistedaboveare non-declared registered (Article10). within 60days,theassociationisconsidered, inprinciple,duly deposit oftherequest (Article9).Ifthenoticeisnotpublished publishes anoticeintheOffi cial Bulletinwithin60daysofthe the association’s nameontheRegisterofassociationsand Ifanauthorizationisgranted,theMinistryput government. The systemisthusbasedonpriorauthorizationbythe

Testimony ofaformermemberHRAStotheEMHRN, November10, 2007. Statesecurityagency, Political securityagency, securityagency. Military Seehttp://www.damadec.org/index.php Testimony ofahumanrightsdefender, memberofSwasiah, totheEMHRN, November9, 2007. 12 . 13

cation? ” (Article6).Furthermore, according to 11 to assessthe that itcouldfacelegalproceedings itthemeetingtookplace. The letterreminding theassociationthatitoperatedillegallyand requested permissiontoholdtheirannualmeetinginDamascus. Ministry, onMay10,2006,sentalettertoHRASwhichhad association havingnotbeenrecognized the bythegovernment, administrative tribunal( then lodgedanappealbefore theMinistry, andlaterbefore the without motivatingitsrefusal, thuscontraveningthelaw. HRAS registration request, thattheMinistryrejected 62dayslater, of Syria(HRAS).OnDecember11,2001,HRASlodgeda is exemplifi ed bythecaseofHumanRightsAssociation Arbitrar practicesare importantofthedecisionmakingprocess conditions theregistration process ofhumanrightsgroups. purely administrativeaspectsoftherequest, which,inpractice, of thenoticeisfree. Therefore, themaindiffi culty rests withthe requested donotpresent unduediffi culties andthepublication to formassociations.Ontheotherhand,documents members, are amongthefactorsthatdiscouragepeople methods ofinvestigationandthescrutinyfounding must numberatleast11.Thishighnumber, aswellthe The lawstipulatesthatthefoundingmembersofanassociation number ofincorporators)? 4 –Howeasyordiffi association before itbecomes alegalentity. 7 and9).ItsnamemustappearontheMinistry’s Registryof a legalentityuntilititsregistrationhasbeenpublicized According totheprovisions ofLawn°93, legal entity? 6 –Doesregistration automatically entailobtainingseparate not yetconvened. but there hasbeennoproceedings yetsincethetribunalhas AHOR andNOHRhaveattemptedtoobtainredress that way validity oftheMinister’s decision.Three associations,Swasiah, administrative tribunal,thatisthensupposedtoexaminethe fails, itthenbecomespossibletoseekredress from the (Article 11oftheCodeprocedures). remedy Ifthisinternal fi rst be lodgedwiththeMinistryofSocialAffairs andLabour The appealincaseofrefusal oftheauthoritiestoregister must legal personalityonthatday. registration hasbeenpublishedornot.Theassociationacquires days aftertherequest islodged (Article7),whetherthenoticeof Law n°93of1958statesthatregistration becomeseffective 60 There isnorecourse incaseofadministrativedelays.In theory, is denied, delayed (e.g. judicial, administrative? 5 –Are there effective remedies inthecaseswhere registration cult istheregistration (e.g. time, cost, Majlis al-Dawla ). Thelegalstatusofthe an associationisnot (Article 14

15 whether alloronlysomeofitsactivitiesaresecret. an associationwhileinfactitsobjectivesarebreachofthelaw, is consideredasecret(illegal)associationifittakestheshapeof article 327ofthePenalCodewhich which isconsideredillegalbecauseitnotregistered members remainthesame.Insuchacase,association, doesnotagreewith,orthatitsfounding that thegovernment aslongitwishestopursuegoals the samebygovernment, formal legalstatus,theassociationwillstillbeconsideredto non-profi t organizationwould beuseless. association bychangingitintoacommercial enterpriseora In thatrespect, tryingtomodifythelegalstatusof its foundingmembers. objections tothegoalsofassociationoronemore of Refusal toregister anassociationisusuallyduetoministerial company, atrust, aWakf)? and incorporate anassociationisdenied(e.g. incorporate asa 7 –Are there otherviablealternatives iftherighttofreely form the grounds thatitwasagainstthepublicinterest ofSyria. its statutespublished.Thatrequest waseventuallyrejected on 60 days,itwasstillcompelledtopetitiontheMinistryforhaving (AHOR) didnotreceive anyreply toitsregistration request within days. Forinstance,whiletheArabHumanRightsAssociation entity merely becausetheMinistryhasnotresponded within60 In practice,anassociationdoesnotformallybecomealegal to operate. association maythentakeallnecessarymeasures toneeded 60 daysoftherequest. Article7stipulatesthattheregistered acquires legalpersonalityifthere hasbeennoresponse within Law n°93alsostipulatesthatanassociationautomatically 1) theassociationhasmovedawayfrom theobjectivessetforth Labour maydissolveanassociationinanythefollowingcases: By wayofamotivatedruling,theMinistrySocialAffairs and law, public order orpublicmorality. it commitsaseriousviolationofitsstatutes;4)underminesthe fi nancial resources forotherendsthanthoseitwassetupfor;3) no longerhasthecapacitytofulfi l itscommitments;2)ituses justify thelegaldissolutionofanassociation:1)association According toLawn°93,anyofthefollowingfourreasons may 1 –Whatare thecauses/grounds ofdissolution?suspension? DISSOLUTION ANDSUSPENSION Part II: “No roomtobreathe, StateRepressionofHumanRightsactivism inSyria”, statesthatanassociation Regardlessofits , fallsunder Report ofHumanRights Watch, 2007. opposition toitsdecisionsispossible. intervention ofthejudiciaryisnotrequired. Noobjectionor the publicauthoritieshaveallauthorityneededand According toArticle4oflegislativedecree n°224 (1969), to women’s rights. Association forSocialInitiativesthatfocusedonissuesrelated interests oftheState,havebrought aboutthedissolutionof Such arbitrarydecisions,basedonthesafeguard ofthe associations. measures neededforitsapplication,includingdissolving full authoritytoapplythelawonassociationsandtakeall Law n°93grantstheMinistryofSocialAffairs andLabour 2 –Whatauthoritiespronounce thesedecisions? the associationare notneeded. objectives; 7)theMinistryconsidersthatservicesoffered by from theMinistry;6)associationisincapableofachievingits pursue activitiesthatare againstthelaw, despitewarnings contrary topublicmorality;5)theassociationcontinues of theState;4)associationispursuingactivitiesthatare racist, religious orpoliticalinnature, thatunderminethesecurity for sixmonths;3)theassociationispursuingactivitiesthatare in itsstatutes;2)theBoard oftheassociationhasnotconvened not beenpublishedisnullandvoid or not.Article13oftheLawstatesthat registration request. TheMinistrymayregister thosemodifications a registration request foranymodifi cations, similartoaregular The associationthatwishestomodifyitsstatutesmustlodge or Statesecurity, thelawsofcountryorpublicmorality. Article 2ofLawn°93,thestatutesmaynotunderminenational standardized modelfortherequest totheMinistry. According to members atthetimeofitscreation. However, theymustfollowa The statutesofanassociationare determinedbythefounding own object(Are such documentsimposed?towhatextent?) amend theirownstatutesandby-laws andtodeterminetheir 1 –Whatistheextentoffreedom ofmemberstodraft and Part dissolution isfi nal andmaynotbeappealedorreviewed. Therefore, itappearsthatanyadministrativedecision on association, butissilentontheissueofremedy andappeals. Law n°93setforththeprocedure forthedissolution of 3 –Are there effective remedies andappeals? ASSOCIATION ANDOPERATION

III : 15 . any modiﬁ cation that has 71

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 72 17 16 women totheBoard orother offi ces. men andwomenthere are norestrictions totheaccessof The legislationonassociationdoesnotdifferentiate between offi limiting orbanningparticipationofwomen inassociational 4 –Are there anyrestrictions (legalordefacto)promoting, either thestatutesorlawhavebeenbreached. within 15daysofthedateelectionifitconsidersthat authorities may, bywayofamotivatedruling,annulanyelection that theproceedings are inaccordance withthestatutes.The representative whowillbepresent attheelectionsandverify For othertypesofassociation,theauthoritiesmaydelegatea board member. candidacy ofanyindividualsthatitconsidersunsuitedtositasa 93 stipul Law n° recognized asbeinginthepublicinterest, Article47 of must beremitted acopyoftheagenda.Asregard associations to theholdingofanymeetinggeneralassemblyand By law, theauthoritiesmustbeinformedatleast15daysprior represented. Board are closelymonitored andtheministryinchargeisalways directly intheoperationsofassociation.Meetings authorizes theMinistryofSocialAffairs andLabourtointerfere As regard thedailymanagementofanassociation,lawn°93 “supervisors”, elections? attendance ofmeetings(Board, General assemblies)by 3 –Isthere anyinterference inthecorporate bodies:e.g. power inthatrespect asinthecaseofexpulsions. or refuses membershiprequests. Thepresident hasdiscretionary In practicalterms,itistheBoard oftheassociationthataccepts expel amember, rules. inconformitywiththeinternal the associationmaydosofreely. Thegeneralassemblymay members oftheassociation.Anymemberwhowishestoleave security services.Thecandidatemustbesponsored bytwo details abouthimselforherselfbefore presenting ittothe must fi ll inastandard forminwhichhemustgiveextensive When applyingformembershipofanassociation,thecandidate or leave associations? 2 –Howstrictisthelevel offreedom ofmemberstoadhere to model rulesoftheassociationmustfollowastandardizedThe internal Cf. Article 70ofministerial decreen°119of1970. ces (e.g. Board)? http://www.ahrarsyria.com/index.php?option=com_content&task=view&id=1237&Itemid=39) 16 , andmembersmaynotchangethatmodelinanyway. ates that the publicauthoritiesmayrefuse that freedom tendstoberestricted. legislation onassociationsissilentthismatterbutinpractice by theConstitution,butinaccordance withthelawonly. The Freedom ofmovementinsideoroutsideSyriaisguaranteed authorities within15daysafterthemeeting. as planned.Theminutesofthemeetingmustbesentto Ministry hastheauthoritytorefuse thatthemeetingproceeds days priortothemeetingandremit acopyoftheagenda.The an associationmustnotifytheauthorityresponsible atleast15 seek therequired authorizations.AsperArticle23ofLawn°93, in theplanningoforientationactivities,andorganizersmust the objectivesofassociation.Meetingsmustbementioned Freedom ofassemblyisauthorizedonlyifitconformsstrictlyto international travel) restricted inanyway? private andpublicmeetings, tomove freely (including 6 –Istheassociation’s righttofreely assembleororganize Ministry foranyproject oractivitythatitwishestoundertake. Furthermore, theassociationmustrequest priorapproval ofthe the law, publicorder orpublicmorality. or thepresident, ifitconsidersthatthedecisionisinbreach of implementation ofadecisionthegeneralassembly, theBoard purpose oftheassociation.TheMinistrymayalsoprohibit the an associationinorder tobringtheminlinewiththestated Affairs andLabourmayintervenetochangetheobjectivesof According toArticle35ofLaw93,theMinistrySocial The authoritiesinterveneinalltheactivitiesofassociations. decide onprojects andactivities?Ifyes, howandwhy? 5 –Are there anyinterference inthefreedom ofassociationsto give all latitude to the government todeterminewhatconstitutes give alllatitudetothegovernment The lawonthestateofemergencyandarticlesPenalCode develop internet sites)? right tofreely communicate (e.g. accesstomedia, publishand 7 –Are associationssubjectedtospecifi condition andendangered his life. him tovexatiousconditionsthathaveworsenedhisheath an advancedstage.Formonths,theauthoritieshavesubjected medical treatment forprostate cancer, whichhasnowreached Democratic Reform,isnotallowedtogoabroad toreceive secretariat oftheNGODamascusDeclarationforNational are deprivedofsuchtreatments. RiyadSayf,thehead ofthe country evenformedicaltreatment andpoliticalprisoners rights activist.Theyare notallowedtotraveladeveloped lists therestrictions tofreedom ofmovementfacedbyhuman 22, 2007,theCommitteeforrenewal ofcivilsocietyinSyria 17 InitsdeclarationofAugust c limitationontheir the Cairo CenterforHuman Rights. part inaworkshoporganizedbytheLIDF, incollaborationwith the Al-AtassiForum,justbefore hewasleavingforCairo totake 1, 2007,thesecurityservicesarrested JihadMsoti,memberof public securityandorder maybearrested. OnNovember freedom ofmovementand anyone suspectedofendangering may beimposedontherightofassembly, therightofabodeand As perArticle4ofdecree n°51ofDecember22,1962,restrictions a fi ne; incertaincases,theymayevenriskthedeathpenalty. without priorauthorizationmaybecondemnedtoajailtermand members ofassociationsthataffi liate withotherassociations with otherslimited(bothdomesticandinternational)? 8 –Isthefreedom ofassociationstocooperate andnetwork having attemptedtochangetheConstitutionbyforce. mission, incitationtomutinyandconfessionaldiscord, andfor false information,prevented theauthoritiestocarryouttheir labour bytheSupreme StateSecurityCourtforhavingspread In July2002,Aref Dalilawascondemnedto10yearsofhard economy ormonetarysystem the moraleofarmedforces, orbeprejudicial tothenational or underminethedignityofStatenationalunity, affect relations”“risks causingpublicagitationordisturbinternational fi ned forpublishing“erroneous” information,particularlyifit an illegalexpression ofthought.Onemaybeimprisonedand 21 20 19 18 are notopposedtosuchprojects. Asperdecree n°6of1965 intended collaborativeprojects andascertainthattheauthorities must informtheMinistryofSocialAffairs andLabourofany the country. Article21ofLawn°93statesthatassociations NGOs are notallowedtofreely collaboratewithentitiesoutside Baath Partyisaired inthemedia. slandered. Asaconsequence,onlytheoffi cial viewpointofthe of thosegroups are nevermentionedexceptwhenthey are communiqués from independentassociations,andtheactivities mediareceive instructiontoignoreof thegovernment all Associations haveonlylimitedaccesstolocalmedia.Offi cials are alsoinaccessible. Manysitesthatarecritical ofthegovernment. notovertly all foreign sites,thoseofoppositionpartiesandthatare that containinformationdeemedpoliticallysensitive,suchas censorsandpreventssites government accesstointernet Invoking oneoranotherofthelawsreferred toabove,the the revolution. Damascus, canby obtainedfromtheEMDRNonrequest. Cf. The jointappealofseveralSyrian humanrightsorganizationsfortheliberationof Aref Dalila. The document, translated OppositiontotheaimsofRevolution: article3and4oflegislativedecreen°6 of1965. Article 306 ofthePenalCode. Cf. The caseof Aktham Nu‘aysa ofCDF, condemnedin April 2004andsummoned beforetheSupremeStateSecurityCourt. 19 18 orifitiscontrarytotheaimsof 20

21 , association. relevant authoritiesmustbe informed oftheactivityplanan any activitiesofanassociation.Article23stipulatesthatthe mayaddotherconditionsfor and statesthatthegovernment of Lawn°93setforththerulesforobtainingpublicfunding must beobtainedbefore thefundsmaybespent.Article22 objectives oftheassociation.Inallcases,priorauthorization associations mustserveexclusivelyforthefurtheranceof Yes. Financialresources andassetsbelongingtolegally-registered the funds, otherthanby theconditionsoftheirgranting? 2 –Are there anylimitationsonthe rightofassociationstouse receive priorapproval. and Labour. Anyfund-raisingcampaigninsideSyriamustalso without priorauthorizationfrom theMinistryofSocialAffairs funding from individualsorassociationsoutsidethecountry Article 21ofLawn°93prohibits associationsfrom receiving receive andownproperty andfunds?How? 1 –Are there anylimitationonthe rightofassociationsto Part the decision-makingprocess onissuesofpublicinterest. There are noconsultationswithindependentassociationsduring 3 –Are there specifi FUNDING ANDTAXATION nature andlevel ofsuchconsultations? participation indecidingonpublicinterest issues?Whatisthe 9 –Istheparticipationofassociationssoughtforopinionor exempted from customduties andotherdutiestaxes. charitable associations,hospitalandhealthcentersare Code, donationstoorphanages,elderlypersonsinstitutions, investment associationsenjoytaxrebates. AspertheCustom Only afewagriculturalcooperativesandconsumer conditions? 4 –Doassociationsbenefi not yetbeenapplied. death. According totheinformationavailable,thatprovision has fi nancing usedtosupportanillegalactivityispunishableby Article 3oflegislativedecree n°6(1965)stipulatesthatany

IV : c limitationsonreceiving foreign funds? ts from taxbeneﬁ in Frenchbytheembassy t? ne what Under ts? 73

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 74 AND TRANSPARENCY CONTROL AUTHORITY, GOVERNANCE of SocialAffairs andLabour. 23 ofLawn°93,theymustalwaysbesubmittedtotheMinistry not confi dential, thosereports are notpublished.AsperArticle presented tothegeneralassemblyatannualmeeting.While by associations.Thefi nancial statementandotherreports are Annual activityreports andfi nancial statementsare prepared to thepublic? 2 –Are accounts and otherinformationtransparently available applicable inthecaseofregular courts. special courtisnotboundbythenormalrulesandprocedures the aftermathofproclamation ofthestateemergency. That Court ( activists havebeenbrought before theSupreme StateSecurity It shouldbenotedthatseveralhumanrightsdefendersand administrative tribunal( may intheoryappealanydecisionoftheMinistrybefore the supervises allactionsandactivitiesofassociations.NGOs The MinistryofSocialAffairs andLabourcloselydirectly the Declaration)? authorities withtheprinciplesoffreedom (checkPrinciple16of security apparatus)? Howconsistentare theactivitiesofthese associations (e.g. courts, ministries, independentbodies, and 1 –Whatare thesupervisoryauthoritiesthatoversee Part

V : Mahkama Amnal-Dawlaal-Uliyya Majlis al-Dawla ). ). Thiscourtwassetupin RECOMMENDATIONS • • • • 3. With regardtothe climaterequiredforthesustainabledevelopmentofcivilsociety • • Putinplaceafair, transparent,neutral andimpartialsystemofallocationpublicfundstoassociations; • FundingandTaxation • • • • • • • • • Association andOperation • • Dissolution andSuspension • • • • • • • • Formation andIncorporation • ReformLawNo.93of1958ontheassociationsandpracticesAdministration,inorderto, 2. With regardstothelawsandpracticespertainingassociationscivilsocietyorganizations • • • • 1. With regardtothepolitical,democraticandhumanrightssituation THE SYRIANGOVERNMENTISCALLEDUPONTO: State andtheamended legislationonassociations. Establish anewinstitutionalrelationship withassociationsofcivilsocietyfoundedontransparency, theimpartialityof particular eliminatethedeathpenalty foroffencespertainingtosuchactivities; Repeal allprovisionsthatallowcriminal proceedingsagainstassociationsandmembersfortheirnormal activitiesand,in associations; Put anendtothepersecutionand harassingpracticesandthepolicyofexclusioncensorshipagainst independent commitments ofSyria; Respect, dejureandfacto,thefreedomsofexpression,assembly andassociationinconformitywiththeinternational and excessivecontrolontheuseofsuchfunds. In particular, authorizeassociationsto receive fundingfromforeignsourceswithoutpriorauthorizationandarbitrary Lift allprohibitionsandrestrictionslimitingfundraisingactivitiesbyassociations; Guarantee fairaccesstotheoffi cial mediabyassociations. Lift allrestrictionslimitingaccesstotelephone,fax,emailandinternet services; decisions; Abolish allrestrictionstothefreecirculationofmembersassociation,exceptincasemotivatedjudicial or networksatthenational,regionalandinternationallevel; Authorize associationstocooperatefreely, withoutrestrictionandpriorauthorization,withotherassociations,federations Abolish allrestrictionstothefreedomofassemblyassociations; association; Abolish theobligationtoobtainpriorauthorizationfromauthoritiesforplannedactivitiesandprojectsof authorities toopposedecisionsofthecorporatebodies; authority tosendarepresentativemeetings,theobligationsubmitminutesofandrightfor Abolish theobligationtoinformauthoritiesinadvanceofplannedmeetingscorporatebodies,rightfor association; Put anendtotheinterferenceofauthoritiesinprocedurespertainingmembersjoiningorleaving the managementofassociationsand,inparticular: Amend boththelegislationandpracticesinordertoputanendinterferencebyauthoritiesactivities dissolution orsuspensiondecisionpronouncedbytheauthorities; Guarantee therighttoaneffectivejudicialrecourse,withsuspensiveeffectandwithinareasonableperiod,incaseof Assign exclusivecompetencetodissolveorsuspendanassociationjudicialcourts; duringtheprocessingofregistrationrequest; ofthesecurityservices Put anendtotheintervention associations; practicesoftheauthoritieswhenprocessingregistration requestslodgedby Put anendtotheabusiveanddilatory Allow associationstomodifytheirstatutesandstatedpurposebywayofasimpledeclaration; Ensure thatassociationswillbeabletopursuetheiractivitiesuntilafi nal rulingontheir caseismade; has beenrejected; Guarantee aneffectiverecoursebeforeatribunal,withinreasonableperiod,toanyassociationwhoseregistrationrequest to operateillegally; Proceed totheimmediateregistrationofallassociations,inparticularhumanrightsorganizations,thatwerehithertoforced the basisofajudicialdecision,toallowassociationbeestablished; responsiblefromrefusing,on while itwouldnotsuspendtheactivitiesofassociation,preventministry systemwhich, Abolish theprocedureofpriorapprovalforregistrationassociationsandimplementdeclaratory Reduce fromeleventotwothenumberoffoundingmembersrequiredformanassociation; tribunal. Guarantee toallcitizensaneffectiveaccessjusticeandtherightafairtrialbeforeindependentimpartial trial beforeanindependentandimpartialtribunal; Abolish theSupremeStateSecurityCourt,aspecialtribunalthatdoesnotmeetinternationalnormsonrighttofair organizations ofcivilsociety; to theConstitution,aswellarticlesofPenalCodeusedcontrolandharasshumanrightsdefenders Consequently, torevoketheLawonStateofEmergencyandn°931958associations,bothcontrary jurisprudence oftheUnitedNationsCommitteeonHumanRights; set forthintheotherinternationalinstrumentsonhumanrightsratifi ed bySyria,andtotakeintoaccounttherelevant Act inconformitywiththeprovisionsofInternationalCovenantonCivilandPoliticalRightsnormsprinciples interalia:

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Freedom of association in Palestinian territories

Introduction

ENABLING ENVIRONMENT OF CIVIL administration, while the Jordanian Charitable Societies Law SOCIETY - “THE GENERAL SETTING” No. 33 of 1966 was applied in the West Bank. In the aftermath of the Israeli occupation of the West Bank and 1 - Political, democratic and Human Rights specifi c the Gaza Strip in 1967, the Israeli military ruler of the Gaza Strip contexts and North Sinai issued military decree No. 686 simultaneously with military decree No. 89 in 1970. These decrees amended Throughout their history, Palestinian associations have had a the Ottoman Associations Law in the West Bank, and mandated very unique experience compared to their peers in other parts the offi cer in charge of interior affairs in the Israeli military of the world. Their experience has been different in terms of their administration to impose strict surveillance on the work of inception and the environment they operate in, let alone the fact associations, a situation that drove some of them to register as that they came to existence prior to the creation of the state. not-for-profi t commercial companies. Civil action in Palestinian territories in general and the formation of associations in particular have passed through two basic - Second Stage: Post- Palestinian National Authority stages, separated by the establishment of the Palestinian Establishment National Authority (PNA). The PNA was established in 1994 as the fi rst Palestinian A constant issue that has structured the life of associations national authority. in the context of a highly effi cient civil society has been establishing of the State of Israel and in particular the sector. Palestinian civil organizations played a vital role in Occupation of the West Bank, Gaza Strip and East Jerusalem terms of provision of services over many decades prior to the in 1967. establishment of the PNA. When the PNA was established, these organizations were responsible for 60% of primary health - First Stage: Pre-Palestinian National Authority (PNA) care, 49% of secondary and tertiary health care, and 100% of In this fi rst stage there were multiple authorities with jurisdiction primary care services.1 over civil action in the West Bank and Gaza. The 1909 The number of associations registered in the West Bank and Ottoman Associations Law was the basis for the work of the Gaza Strip stood at 1250 in 2001. About 675 associations these organizations in Palestine placing little restriction on the operated in the West Bank, 31.1% of which were registered registration procedures. However, the Ottoman authorities’ fear after the establishment of the PNA. In Gaza, the number of the growing phenomenon of Arab nationalism in the Arab of associations registered with the Ministry of the Interior world led them to place several strangling restrictions on this stood at 575, 79 of which were licensed before the PNA was right, especially regarding political and social associations. established.2 Also under British mandate period in the emergency laws According to the same source 3, out of the total number of imposed in 1945, several restrictions were placed on these associations registered in the West Bank and Gaza for the social associations. same period, charities constituted 40.4%, youth and sports This situation changed after the 1948 war and the subjection organizations 30.4%, cultural centers 10.2%, relief organizations of the West Bank and the Gaza Strip to two different legal 4.8%, development organizations 4.9%, research centers 3.5%, administrations. In Gaza, the Ottoman Associations Law training and rehabilitation. The remaining 2.8% were human remained in effect without any changes by the Egyptian rights organizations.4

1 Barghouthi, Mustafa, Palestinian NGOs and their Role in Building a Civil Society, Jerusalem: Union of Palestinian Medical Relief Committees, 1994. 2 The Independent Palestinian Commission for Citizens Rights, The Formation of Societies in the PNA Territories, Law and Practice, a series of reports (15), 2002, Ramallah. 3 It was very diffi cult to obtain accurate fi gures on the numbers of associations registered with the Interior Ministry because of the damage the buildings and fi les of the Ministry sustained during the infi ghting. However, the fi gures we obtained from the personnel of the NGO’s Department at the Ministry indicate that the number of associations registered with the Ministry stood at 1059 at the beginning of 2007. 4 For exemple, the Al Mezan Center of Human Rights, Al-Haq, le Palestinian Center for Human Rights.

76 targeting associationsthatbelong totheHamasMovementin to renew theirregistration. Thedecree wasconsidered tobe associations andinstitutions,whichrequires allassociations issued adecree on20/6/2007 forregistration ofcivil Recently, aftertheHamascoupinGaza,President Abbas resolution number9of2003. Executive regulations ofthe lawundercouncilofministers D -Decrees number 1of2000 Palestinian lawofcharityassociationsandcivilinstitutions associations, ...etc.) C -Nationallaw assemblies inaccordancetothelaw. of policepersonnel,andholdingpublicmeetings,marches, opportunity ;5-Holdingprivatemeetingswithoutthepresence the law;4-Holdingpositionsandpublicoffi ces basedonequal or nominationforelectioninpublicelectionsaccordancewith Choosing representativesfromamongthemthroughvotingand/ clubs, andcivilinstitutionsinaccordancewiththelaw;3- with thelaw;2-Establishingtradeunions,associations,leagues, 1 -Establishingpoliticalpartiesandjoiningtheminaccordance they enjoythefollowingrights: participate inthepoliticallifeasindividualsandgroups.Particularly, Basic Lawwhichemphasizesthat“ is aconstitutionalrightstipulatedinArticle26ofthePalestinian B -Constitutionalprovisions: agreements.international that supersedesnationallegislationobligatesthePNAto Rights doesnotobligatethePNA.Hence,there isnolaw ratifi CovenantonCivilandPolitical cation oftheInternational agreements, sothere are noagreements ratifi ed byit.TheIsraeli instruments: A -International 2 -Legislation work ofassociations. thereby seriouslycompromising theefforts andpossibilitiesto rights situationandofPalestinianNGOs’workingconditions- Aqsa Intifada,hascausedaconstantdeteriorationofthehuman Territories, theWest Bank,and Gazasincetheonsetofal- attempts oftheWest Bank,incursionsintoPalestinian In themeantimeIsraelioccupation,andannexation work ofcivilorganizations. raised fearsofsecuritymonitoringandpoliceinterference inthe and entities,rejecting outrightdemandsfrom civilsociety, which be thebodyinchargeofregistration ofcivilorganizations the executivepower’s insistedthattheMinistryofInterior No. 9of2003.Althoughthelegislationhaspositiveaspects, regulation ofthelawwasissuedfollowingCabinetdecision (Al Waqae AlFilistiniya)inthesameyear. In2003,theexecutive 2000 andthelegislationwaspublishedinOffi cial Gazette Charitable AssociationsandCommunityOrganizationsLawin The PalestinianLegislativeCouncil(PLC)endorsedthe (reference laborlaws,cooperatives,solidarity

The PNAisnotentitledtosign The righttoformassociations Palestinians havetherightto law. between three tosevenyears,orafi ne inaccordance withthe are punishableunderpenallawbyimprisonmentforaperiod case theassociationisconsidered illegalanditsmembers Palestinian lawdoesnotallowundeclared associations.Inthis Dissolution? Imprisonment?Etc.) associations? (Are there penalties fornon-declaring? 1. Doesthesystemallowfornon-declared orunincorporated resolution toregister theAssociation forPalestinianWorkers Aid years, in16/4/2006,toforce theMinistryofInteriortoissue a Palestinian supreme court, which issuedajudgmentaftertwo ministry, buttonoavail.In12/5/2004,theyresorted tothe ministry. In1/4/2007,thefounderssentalegalnoteto association, buthavenotreceived anyresponse from the The foundersappliedtotheinteriorministryregister their The case Cases ofsuchpracticeshavehappenedalready. to beagiftratherthanfulfi llment oftherequirement ofthelaw. territories. Theexecutiveauthorityconsidersissuingalicense hampering thefreedom of civilsocietyworkinPalestinian However, thiscompromise stancehasbeenabusedtojustify required licensing. from declaration,andtheJordanian AssociationLaw which Ottoman AssociationLaw, whichdidnotrequire licensingaside the Palestinianlawadoptedacompromise stancebetweenthe By includingconditionsforregistration inlawsandregulations, submission ofapplication. Interior withinaperiodthatdoesnotexceedtwomonthsafter any activitybefore obtainingtheapproval oftheMinister of procedures sinceassociationsare notallowedtoconduct practice, licensingisconsidered aprerequisite inregistration principle forcivilbodieswithouttheneedalicense.Butin The lawemphasizestherighttoformassociationsasabasic information/notifi 2. Istheregistration systembasedonlicensingorsimple FORMATION ANDINCORPORATION Part I: human rights. andregionalinternational agreements andcovenantsrelated to article 10ofthebasiclawstipulatesthatPNAseekstojoin agreements. However,not enjoytherighttosigninternational This stemsfrom thefactthatPNAisnotastateanddoes law andthenationallaw, andwhichlawsupersedestheother. does notdealwiththerelationship betweentheinternational The basiclawofthePNA(itiscalledaconstitutionfi guratively) the nationallaw? E -Whatistherelationshiplawand betweeninternational organizations andtradeunions. the West BankandGazaStrip.Itwascriticizedbymanyrights Association forPalestinianWorkers Aid cation? issignifi cant.

Turkey Tunisia Palestinian territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Turkey Tunisia Palestinian territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 78 regards procedure toapplications.Thisinternal isnotrequired directorate intheministryconfers withthesecurityservicesin 6 5 and documentsfrom applicants. As forthepracticalaspect,ministryrequires more procedures a considerabletimetocompilethem. noting thatthequantityofdocumentsisverylargeandittakes diffi cult aftercompilingallrequired documents, butitisworth three applicantstosignon the application.Registrationisnot including awrittenproxy from allthefoundersauthorizing three otherattachmentsto be enclosedwiththeapplication, competent directorate. Inaddition,theregulations require should besubmittedbyatleastthree ofthefoundersto 11 oftheexecutiveregulations stipulatesthattheapplication the competentdirectorate intheMinistryofInterior. Article and therequired contentsoftheapplicationsubmittedto practical stepsthatmustbefollowedtoapplyforregistration In termsofregulations, theexecutiveregulations defi ne the diffi culty offorminganassociation. minimum ofsevenpersons.Thisrequirement increases the Palestinian lawprescribes thatthenumberoffoundersbea constitute anyhindrancetoestablishinganassociation.The to 20Jordanian dinars(almost$30).Thisamountdoesnot The costofestablishinganassociationisnothigh;itamounts number ofincorporators) 4. Howeasyordiffi the PNA. applicants belongtoHamas,orothergroups notaffi liated with isusuallydirectedFatah government toward associationswhose for securityandpoliticalreasons. Delayinresponding under the However, there isusuallyadelayinresponding bytheministry The casesofjustifi edrejection toregister anassociationare rare. decision inwriting. appeal thedecisionwithinthirtydaysafterreceiving therejection decision shouldbejustifi ed. Theapplicantshavetherightto the law. Iftheministerissuesadecisiontodenyregistration, the the associationwillbeconsidered registered inaccordance with response from theauthoritiesaftersubmittingapplication, the associationanddeclaringit.Iftwomonthspasswithouta of theapplicationtolegalconditions,includingregistering the discretion ofthatauthority, butratheronthecompliance application bythecompetentauthoritydoesnotdependon fulfi lls alltheconditionsinlaw. Theacceptanceofthe establishment ofacivicassociation,andthattheapplication The lawonlyrequires submittingawrittenapplicationforthe (e.g. race, security, religion, politics) 3. Whatare thebasisuponwhichregistration canberejected? for the registration. (seepress release issuedbyAl-MezanCenter and toconsideritlicensedbylaw. Theassociationthenreceived Procedures, Tamkeen –ProjectofPromotingDemocracy andCivilSociety, 2003, P.18)Society, 2003, p. 18). andhavenothing todowithcivilsocietyactivities.security concerns political affi liation, countriesvisited, dateandreasonsofimprisonments, names ofthreeclosefriends, ofthe andasummary Forinstance, registrationproceduresinGazastripalsorequires “ Ibid

Human Rights . p.19

number 7/2006,19/6/2006). cult istheregistration: (e.g. time, cost, 5 Inaddition,thecompetent ” (RibhiQatamish, RegistrationofCiviland attaching curriculumvitaforeachfoundingmember fortheassociation, whichshouldincludecurrent andpast

in theoffi cial gazette. activities before registration, orbefore declarationofregistration registration. Associationsare notallowedtocarryout their gain anindependentlegalandfi nancial personalityright after Article 7ofthelawstipulatesthatassociationsandinstitutions legal personality? 6. Doesregistration automaticallyentailobtainingaseparate case earlier. to issuearegistration certifi cate. Thisreport hascitedasimilar submit thisreceipt toobtainajudgmentthatforces theministry certifi cation, butitisbettertoresort totheSupreme Courtand receipt forregistration feescouldbeconsidered aregistration to belicensedafter60daysofsubmittingtheapplication.The in responding toanapplication,thelawconsidersassociation and allowapplicantstoresort tothejudiciary. Inthecaseofdelay In caseofdenialregistration, lawprovisions of2000are clear denied, delayed (e.g. judicial, administrative?) 5. Are there effective remedies inthecaseswhere registration is preventive securityforce, andtheintelligenceagency. activities oftheassociationsubjectapplication, the MinistryofInterior, therelevant ministrywhichcoversthe on acquiringapproval from fourdifferent bodies: governmental by law, whichmadeobtainingregistration bycitizenscontingent - following reasons: If dissolutionisforced uponanassociation,itcouldbeforthe dissolution resolutions. Associations shouldinformtheministryimmediatelyabout with theapproval ofthemajority oftheirpublicassemblies. Associations havetherighttodissolvethemselvesvoluntarily 1. Whatare thecauses/grounds ofdissolution?Suspension? DISSOLUTION ANDSUSPENSION Part II: applicable intheWest Bank. and theCooperativeAssociations’Lawnumber17of1956 Associations’ Lawnumber50of1933applicableinGazaStrip, of Laborascooperativesaccording totheCooperative There are anumberofassociationsregistered intheMinistry of 1929. companies inaccordance withthecompanies’lawnumber30 occupation eraandthebeginningofPNAasnot-for-profi t There were anumberofassociationsregistered duringthe company, atrust “Wakf”) and incorporate anassociationisdenied(e.g. incorporate asa 7. Are there otherviablealternatives iftherighttofreely form year afteritsregistration, aslongthesuspensionofactivities If theassociationdoesnotstartitsactualactivitiesduringfirst

Charitable Associations: A studyinLegaland Administrative mainstagesoflive. All thesequestionsarestemmedby 6

7 paragraph thatdealswiththisissue. may objectaboutvotingresults. Readersshouldrefer tothe If thedissolvingdecisionwasvoluntary, othermembers administrative decision. administrative court.Itconsiderstheminister’s decisionan court” inthisregard istheSupreme Courtinitscapacityasan decision todissolvethem.Thelawstipulatesthatthe“competent appeals submittedbyassociationswhichobjecttotheminister’s The lawauthorizestheadministrativejudiciarytoconsider 3. Are there effective remedies andappeals? standard.international associations tohisdiscretion, incontradictionwiththe The lawauthorizestheMinisterofInteriortodissolve Judiciary, Executive ...) 2. Whatauthoritiespronounce thesedecisions?(role ofthe to complywiththeLaw. condemned nornotifi ed inwhatcapacitytheassociationsfailed associations. Theauthoritieshavenotnotifi ed theassociations On August27,2007,theMinistryofInteriordissolved103 dissolution case. can continuetheiractivitiesuntilthecourtissuesarulingin the decisionshouldbejustifi ed andinwriting.Associations If anorder isissuedbytheministertodissolveassociation, - for registration ofanassociation. Foundersofassociations ministry prepared inadvanceanddistributetopeopleapplying territories reveals thattheirstatutes are basedonaformthatthe Studying therealities ofcharity associationsinPalestinian public assembly’s votes. to amendstatutesiftheyobtaintheabsolutemajorityof directions oftheassociation, inadditiontotherightofmembers members ofthe“publicassembly”toformpoliciesandgeneral that realize associations’goals, anditguaranteestherightof 1 of2000guaranteestherighttocarryoutdifferent activities The LawofCharityAssociationsandSocialInstitutionsnumber extent?) own objectives? (are suchdocumentsimposed?towhat amend theirownstatutesandby-laws andtodeterminetheir 1. Whatistheextentoffreedom ofmemberstodraft and ORGANIZATION ANDOPERATION Part III: For more precisions, see “ or thedirectorate. of three monthsafterreceivingbytheministry awrittenwarning crucial way, anddidnotcorrect thesituationwithinamaximum If itwasproved thattheassociationviolateditsstatutesina ministry afterissuanceofawrittenwarning. control. Inthiscasetheregistration willbecanceledbythe was notcausedbyaforce majeure outoftheassociation’s

Al-Haq Position Paper ofInterior’s Decision toDissolve103CivilSocietyOrganisations on theMinistry 7

associations. the doorforconfl ict ofinterest andthecontrol ofsome whether civilianormilitary, joiningassociations.Thisopens The lawdoesnotputanyrestrictions onseniorpublicoffi cials, adoption ofparticulardecisionsorelectingpersons. associations resort torecruiting newmemberstoguarantee during publicassemblymeetings.Somepowerfulactorsin The issueofopeningmembershipisusuallyasubjectdebate will ofmanagingboards ofassociations. associations sincemembershipisclosedanddependsonthe leave associations,there isnotinpracticeanyfreedom tojoin everyone. Eventhoughthelawguaranteesrighttojoinor and runningthemfreely. Membershipinassociationsisopento consolidate therighttoestablishingassociations,joiningthem, Law isconsistentwithPalestinianlegislators’intentionsto We believethattheCharityAssociationsandSocialInstitutions been lefttotheassociation’s statutes. membership andreasons forterminatingmembership,ithas be aminimumofsevenpersons.Asfortypesandconditions associations, butitstipulatesthatthenumberoffoundersshould with thelaw. including establishingandrunningcivilassociationsinaccordance to engageinsocial,cultural,trade,andscientifi c activitiesfreely, number 1of2000stipulatesthat“ Article 1ofCharityAssociationsandSocialInstitutionsLaw associations? 2. Whatdegree offreedom domembershave tojoinorleave women’s roles insociety. territories hasadirect effect onthelevelofparticipationand their participation.However, thesocialsituationinPalestinian As forparticipationofwomen,there are norestrictions on offi limiting orbanningparticipationofwomen inassociational 4. Are there anyrestrictions (legal orde-facto)promoting, to attendanyofthemanagement’s meetings. other executiveauthorityhasnorighttosendarepresentative assembly meetingsandelections.However, theministryorany inform theministryinadvanceaboutdatesofpublic public assemblymeetingsandelections.Associationsmust The ministryhastherighttosendarepresentative toattend “supervisors”, elections? attendance ofmeetings(Board, General assemblies)by 3. Isthere anyinterference inthecorporate bodies:e.g. registration process. by thatform,theministrywillobjectandputobstaclesin should followtheready form.Ifanassociationdoesnotabide address, branches,andgoals.Otherthanthat,allassociations are obligedtofi ll thebasicinformation:nameofassociation, ces (e.g. Board). ” Hence,thelawguaranteesrighttoestablish ” http://www.alhaq.org/etemplate.php?id=340 Palestinians havetheright 79

Turkey Tunisia Palestinian territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Turkey Tunisia Palestinian territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 80 Al-Rahmah Committee; Al-Aqsa Charity Association; CharityCommitteeforZakatand Aid; SocialCharity Committee; SocialCare As Branches); Al-Nour Charityassociation (formerlyknowasPrisonersCare Association); StudentsFriends Association; Centerof S 9 8 ambiguous goals. institutions isminimal,withtheexceptionofrare meetingswith interest. Butthereality ofjointworkbetweenpublicand civil policies, anddecision-makingprocess related tothe public society, whichimpliestheirparticipationindrawingupofpublic relations betweenpublicinstitutions andtheinstitutionsofcivil public interest. coordination, cooperation,andintegrationforthebeneﬁ t ofthe associations andinstitutionswithrelevantministriesisbasedon Law number1of2000stipulatesthat“ Article 10oftheCharityAssociationsandSocialInstitutions nature andlevel ofsuchconsultations? participation indecidingonpublicinterest issues?Whatisthe 9. Istheparticipationofassociationssoughtforopinionor cooperate withotherassociations. There are norestrictions onassociations’freedom todealand others limited(bothdomesticandinternational)? 8. Isthefreedom ofassociationstocooperate andnetwork with internationally. joint activitieswithotherassociationslocally, regionally, and use theirwebsiteswithoutanyhindranceandcanengagein activities incommunicationsandpublishingfreely. Theyalso Charity associationsandsocialinstitutionspracticetheir develop internet sites)? right tofreely communicate(e.g. accesstomedia, publishand 7. Are associationssubjecttospeciﬁ activities afterdamagestofacilitiescausedbyarmedgroups. Recently, numerous associationshavebeenforced tostoptheir meetings, board meetings,publicassemblies,andelections. have aneffect onassociations’abilitytoholdmanagement movement oftheassociations’cadre. Theserestrictions also the Israelioccupationaffect practicingthisrightintermsofthe movement andtravel.However, therestrictions imposedby The PNAdoesnotimposeanyrestrictions onfreedom of Associations holdtheirmeetingsfreely aspartoftheiractivities. restricted inanyway? and publicmeetings, move freely (includinginternationaltravel) 6. Istheassociation’s righttofreely assembleororganize private decide onprojects andactivities?Ifyes, howandwhy? 5. Isthere anyinterference inthefreedom ofassociationsto that associationsare free topursuetheirprojects andactivities. not exceedreceiving reports from associations,whichindicates role oftheMinistryInteriororanyotherrelevant ministrydoes carry outanylegalactivitytorealize theirgoals.Inpractice,the associations. Thelawguaranteestherightofassociationsto There isnointerference bytheauthoritiesinactivitiesof The Islamic Association (11branches); Al-Salah Islamic Association (8branches); The Young Muslim Women Association (11branc Formoreinformationonassociationsforced tostoptheiractivities, ” Thisshowsthenecessityofestablishingstrong the relationshipbetween c limitationsontheir pleasetheReportof Al -Haqetd’Al-MezanCenterforH 8

of Financeissuedanothermemorandum (memorandumnumber or approval from theMinistryofFinance.In6/4/2004, the MinistryofInteriordirectly, withoutneedforamemorandum institutions mentionedbefore shouldbebasedonadecisionby disbursement from theaccounts belongingtoassociationsand (memorandum number48)toallbanksclarifyingthat In 31/3/2004,theMinistryofFinanceissuedamemorandum the Palestinianpresident and orders from theMinistryofInterior. previous memorandum,this timeonthebasisofadecree from on theaccountsbelongingtoassociationsmentionedin a newmemorandumaskingallbanksfor“aprovisional freezing” essentially frozen. it informalitywhilekeepingthementionedassociations’accounts attempting nottoimplementitthrough “ that, theMinistryofFinancecircumvented thecourtdecision above allowingassociationstoaccesstheirmoneys.Despite cancel theMinistryofFinance’s memorandummentioned In 21/3/2004,theSupreme Courtissuedajudgmentto accordance withthelawinGazaStrip. Finance. of accounts withoutwrittenadvancedapprovalfromtheMinistry to someassociations“ all banksworkinginPalestinetofreeze allaccountsbelonging memorandum, basedonanorder general,to from theattorney In 24/8/2003,thePalestinianMinistryofFinanceissueda by thelaworexecutiveregulations. constitutes anadditionalillegalconditionthatisnotstipulated without approval from theMinistryofInterior. Thisorder from openingaccountsforcivilassociationsandinstitutions the MinistryofInterior, toallbanksworkinginPalestinerefrain memorandum in5/9/2001,accordance withinstructionsfrom In additiontothat,thePalestinianMinistryofFinanceissueda month. cash sumsintheirofﬁ ces thatexceed theirexpensesforone the bankstheykeeptheiraccountswith,andcan’t keep authorities. Associationsmustinformtherelevant ministryabout monetary fundsintheirnamesabankorbanksapproved by Article 31ofthesamelawobligesassociationstodeposittheir prohibits attachingconditionstofundingandaid. receiving aidandfundsorowningproperty. However, thelaw Palestinian legislationdoesnotimposeanyrestrictions on receive andownproperty andfunds?How? 1. Are there anylimitationsontherightsofassociationsto FUNDING ANDTAXATION Part IV: and theMinistryofInterior. the rightauthoritytoadjudicateinconﬂicts betweenassociations The Supreme Court,initscapacityasanadministrativecourt,is 10. Are there effective remedies andappeals? ” Thisdecisioninvolved39associationsthatoperatein

” In27/3/2004,theMinistryofFinanceissued and nottoreleaseanymoneyfromtheir uman Rights, 2/7/2007, www.mezan.org. cience andCulture Association; Zakat sociation. hes); The Islamic Assembly (2 Islamic Assembly hes); The pretending toimplement 9

from theMinistryofFinance. still havenotbeenreimbursed fortaxexemptionsduetothem of theirfundswithoutlimitations.However, manyassociations years ofreceiving thefunds,associationscanusewhatremains according totheMinistryofFinance’s procedures. Afterfi ve tax exemptionsandhavetopayallrequired taxesandcustoms their statutes,theyloseallprivilegesandtherighttobenefi t from if associationsdonotmakeuseoftheirfundsinaccordance with all thetaxesandcustomsitpaidforfunds.Onotherhand, receiving thefunds.Inthiscase,associationisreimbursed for has notspentfundsinviolationofitsstatuteswithinfi ve yearsof exemptions. Theseexemptionsare grantediftheassociation stipulated initsstatute,itcanbenefi t from taxandcustoms On theotherhand,ifanassociationdisposesofitsfundsas is punishablebypenallaw. is considered acrimeofillegaldispositionpublicfunds,which a mannerdifferent from thatwhichisstipulatedintheirstatutes Disposition ofmovableandimmovableassetsbyassociationsin Interior hastherighttosuspendordissolveassociation. Yes, there are restrictions. Ifthathappens,theMinistryof use fundsinways different thanwhattheirstatutesstipulate? 2. Are there anyrestrictions thatlimittherightofassociationsto 31/3/2003. to allbanks“toabidebyitsmemorandumnumber48issuedin ofFinanceissuedanewmemorandum The nextdaytheMinistry legal measurestoimplementthecourtdecisionmentionedabove 56) stipulatingthat“ 3. Are there specifi stated intheirstatutes. movable andimmovableassetsnecessarytocarryoutgoals that associationsare exempt from taxesandcustomsontheir associations. Article51oftheexecutiveregulations stipulates The executiveregulations address taxexemptions for what extent? 5. Doassociationsenjoy anyfi them from receiving fi nancial aid. targeted bydecisionstofreeze theiraccountsandtorestrict when someassociationsbelongingtoHamasMovementwere We mentionedearlierinthisreport someproblems happened 4. To whatextentare thoserestrictions implemented? are usuallyimposedonforeign associations. no restrictions onPalestinianassociations.However, restrictions bank approving thecreation oftheaccount.Ingeneral,there are a memorandumissuedbytheMinistryofFinancetorelevant opening abankaccountexclusivelyfortheproject. Thisrequires owever, atsigningthefundingagreement, donorsrequire There are norestrictions inthelawonreceiving foreign funds. 10 in 22/2/2004, 21/3/2004, and29/3/2004. Seepressreleaseissued bythePalestinianCenterforHuman Rightsissuedin April8, 2004, andpressreleasesissuedby Al-Me ” 10

c limitationsonreceiving foreign funds? all banksworkinginPalestineshouldtake nancial ortaxes privileges?To .”

AND TRANSPARENCY and thedirectorate ofassociations’ registry. authorities oftheoffi ce offi nancial andadministrativeoversight investigations ratherthanmonitoring.Italsoconfl icts withthe abused through interpretation oflawsandusingitasatoolfor This authoritycouldhindertheworkofassociationsifitwas ministry wasdissolvedon2003. in additiontotherelevant ministry. Itisworthmentioningthatthis of associationsandmonitoringthemtotheMinistryInterior, refer tothisministry, anditgivestheauthorityforregistration Institutions, whichbecameoperativein31/3/2000,doesnot ministry. ThePalestinianLawofCharityAssociationsandCivil 1999 in6/10/1999whichdelineatedtheauthoritiesofnew especially aftertheissuanceofpresidential decree number 4of This ministrybecameasource ofadditionalcomplications, in accordance withpresidential decree number2of1998. A ministrywasestablishedfortheaffairs ofcivilassociations July 14,2007. 7/2). Thisoffi ce engagedinactualandseriousmonitoringuntil Offi ce tomonitorassociations(lawnumber17of1995,article The AssociationsLawalsocommissionedPublicInspection intelligence agency. ministries, orbythepreventive securityapparatusandthe bodies multipliedandmonitoringispracticedbymanydifferent to monitortheworkofassociations.However, monitoring Article 6ofthelawdelegatedtorelevant ministrytheauthority principles offreedom (example:article16oftheDeclaration)? How consistentare theactivitiesoftheseauthoritieswith (e.g. courts, ministries, independentbodies, securityapparatus)? 1 -Whatare thesupervisoryauthoritiesthatoversee associations Part V: associations. of Financeorthepresident’s offi ce until2003,exceeds130 number ofassociationsthatreceived fundingfrom theMinistry the stateparty(Fatah)inairregular manner. Estimatesofthe funded anddelegatedtoworkforassociationsaffi liated with monitoring bodies.Inotherwords, manypublicemployeeswere including thatintheirreporting tothelegislativecouncilandother by fundingmanyassociationsfrom thepublicfundswithout the FatahMovement,authoritiestriedtocontrol society associations. However, thatwere duringthegovernments ledby There are noprovisions inthelawthatrequire thestatetofund these processes prone todiscrimination? 6. Are publicfundsmadeavailable toassociations?How?Are associations’ funds. association. There are alsoothercriminalpenaltiesrelated to As wementionedabove,thepenaltycouldbedissolving measures are appliedincasesofviolations? 2 -Whatpenalties(e.g. criminal, fi

OVERSIGHT, GOVERNANCE zan CenterforHuman Rightsissued nes, etc)andharassment 81

Turkey Tunisia Palestinian territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Turkey Tunisia Palestinian territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 82 • RescindthedecisionofFayadgovernmentatRamallahtosuppress103associations. • 3. With regardtotheclimaterequiredforsustainabledevelopmentofcivil society • • Funding andTaxation • Organization andOperation • • Dissolution andsuspension • • • • Formation andIncorporation • 2. With regardtothelawsandpracticespertainingassociationscivilsocietyorganizations • 1. With regardtothepolitical,democraticandhumanrightssituation THE PALESTINIAN AUTHORITIESARECALLEDUPONTO: its uprisingandensurethatallthefundswereconfi scated arereimbursedtothem; Allow thereestablishmentof54associationsthatwereillegallydissolvedinGazaStripbyHamasbeforeandafter AuthorityofAugust24,2003. Palestinian Monetary Execute thedecisionofSupremeCourtGazaStripMarch21,2004,whichannulleddecree of thelaw; Refund thetaxandcustomexemptionsduetoassociationsforpurchasetheymade,inaccordancewithprovisions to themembershipofassociationsandattributionunjustifi ed advantagestoassociations. Implement theexistinglegislationandgeneralprinciplesoflawinordertoputanendinfl uence traffi cking pertaining 2000, inordertotakeawayfromtheMinisterofInteriorpowerdissolveassociations. Accordingly, amendarticle65ofLegislativeCouncilDecisionNo9(2003)pertainingtotheimplementationdecree1 Grant exclusivecompetencetodissolveorsuspendassociationsthejudicialcourts; associations. intheregistrationprocedureand,generally,Put anendtotheinterferenceofsecurityservices intheactivitiesof forassociationstoregisteragain; Rescind thePresidentialdecreeof6/20/2007whichmakesitmandatory Ensure thattheregistrationprocedureforassociationsislimitedtoascertainingrequirementsoflawhavebeenm Reduce fromseventotwothenumberoffoundingmembersneededformanassociation; Transfer ofJustice. oftheInteriortoMinistry responsibilityfortheassociationsfromMinistry and regionaltreatiesconventionsfortheprotectionofhumanrights; Act inconformitywitharticle10oftheBasicLawwhichstatesthatPalestinianAuthorityisintenttoadhereinternati onal et;

RECOMMENDETIONS Freedom of association in Tunisia

Introduction

ENABLING ENVIRONMENT OF CIVIL 2 - Legislation SOCIETY - “THE GENERAL SETTING” Tunisia is a signatory state of the International Covenant on 1 - Civil society landscape Civil and Political Rights, in which it is stated that everyone shall have the right to freedom of association with others (Article 22) In 1994, when the United Nations Human Rights Committee and that no restrictions may be placed on the exercise of that studied for the last time a periodical report submitted by Tunisia, right “other than those which are prescribed by law and which are the Committee expressed its concerns with that country’s law necessary in a democratic society in the interests of national safety on associations that could be used to limit the enjoyment of or public safety, public order, the protection of public health or freedom of association, as defi ned in Article 22 of the International morals or the protection of the rights and freedoms of others.” Covenant on Civil and Political Rights, ratifi ed by Tunisia. Since Article 8 of the Tunisian Constitution of 1959 states that the then, as reported by regional and international human rights freedoms of opinion, of expression, of the press, of publication, associations, constraints of all types upon the enjoyment of that of assembly and of association are guaranteed and exercised right have multiplied.1 subject to conditions established by law. However, this constitutional guarantee is theoretical and the evaluation of the Today, there are some 9,132 associations of all categories in exercise of those freedoms is left to a legislative branch under Tunisia 2. They are active in all fi elds of activity of civil society. Yet the control of an omnipotent executive. It should be pointed few of those escape from government interference when they out that amendments to the Constitution, including the one determine their goals and activities and select their leadership. establishing a Constitutional Council, did not put in place an Less than a dozen may be considered to be fully independent effective mechanism for controlling the constitutionality of laws, from the encroachment of the one-party state. Another dozen before or after their adoption. associations that are not offi cially recognized are compelled Furthermore, Article 32 of the Constitution states that all duly to operate without offi cial authorization (and have therefore no ratifi ed international treaties take precedence over national laws. offi ces, no legal addresses, no bank accounts, etc.). They all In spite of that, Tunisian courts systematically refuse to give suffer from constant harassment by the security apparatus, the precedence to international conventions, maintaining that their judiciary and government offi cials. It should be noted that, since role is limited to “applying the law”. The Tunisian government 1989, no independent NGOs hace been allowed to operate continues to renege on its international commitments with the offi cially in Tunisia. result that national laws are sometimes at variance with the provisions of the Covenant. Given the present repressive frame of mind of the authoritarian government of Tunisia, it is not surprising that the authorities The law of November 7, 1959, that governs associations (Law tend to see all independent NGOs as so many opposition n° 59-154) has been amended by the law of August 2, 1998, groups. The legislation on associations was amended in 1992 (establishing the procedure of “declaration” of the associations) in order to put even more pressure on existing independent and the law of April 2, 1992, (establishing a classifi cation of associations as well as their members. associations according to their activities and their objectives).

Various types of associations exist in Tunisia, such as women associations, sports and cultural associations, fraternities, charities, associations of a general nature (associations à

1 Report of Hina Jilani, U.N. Special representative on the situation of human rights defenders, March 17, 2007, A/HRC/4/37/Add.1 2 For instance, the Association tunisienne des femmes démocrates (ATFD), the Conseil national pour les libertés en Tunisie (CNLT), the Ligue tunisienne des droits de l’Homme (LTDH). See (http://www.tunisie.com/societe/associations.html)

83 Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 84 declaration ofassociationanda list offoundingmembersatthe Individuals wishingtoforman associationmustdeposita 29 and30oftheLaw. of suchassociationswiththepenaltiesprovided forinArticles limited bothinscopeandtime),threaten theproponents groups intentonlaunching hungerstrikes,whoseaimsare in time(e.g.politicalprisonerssupportcommittees,protest the formationofNGOsthatwishtopursuegoalsare limited interpreted narrowly theterm“permanently”inorder toprevent bythegeneralprinciplesofcontractual law governed objective otherthanmerelypecuniary, andthattheassociationis put incommontheirknowledgeoractivitiespursuitofan is aconventionwherebytwoindividualsormorepermanently (Law n°59-154ofNovember7,1959)statesthat in order tobeincorporated.Article1oftheLawonassociation In theory, associationsmustgothrough thedeclarationprocess information/notifi 2 –Istheregistration systembasedonlicensingorsimple the riskofbeingprosecuted before criminalcourts. associations are prohibited andoffi cials ofsuchassociationsrun Under Articles29,30and31oftheLawonassociations,unofficial associations? 1 –Doesthesystemallowfornon-declared orunincorporated FORMATION ANDINCORPORATION Part I: executive bodiesincludedmanyappositionfi gures. général not atthesametimebeoffi cials ofanassociation the lawstatesthatseniorexecutivesofpoliticalpartiesmay taken control oftheexecutivebodiesthatNGO.Likewise, supporters oftherulingparty, andwhocouldeventuallyhave l’Homme to fl ood themembershipof hadplanned At thetimelawwasdrafted,government activities thatareincompatiblewiththegoalsofassociation membership doesnotenjoycivicorpoliticalrights,pursue respect itsprinciplesanddecisions,unlessthecandidateto général as withitsoperations.Forinstance,an to interfere withtheveryexistenceofassociationaswell offiMinistry oftheInteriorandgovernment cials underthatministry The la RépubliqueTunisienne. the noticepublishedinoffi cial gazette, belongs mustbeindicatedonthedeclarationdocumentandin caractère général association àcaractèregénéral . Again,thiswasintendedtodestabilizetheLTDH whose must acceptasamemberanyonewhoendeavoursto (LTDH) withnewmembersthatwouldhavebeen cation? ), etc.Thecategorytowhichanassociation

Ligue tunisiennedesdroitsde classifi cation allowsthe association àcaractère the Journal offithe Journal ciel de an association . Courtshave à caractère . Journal offiJournal ciel. the delayisexpired andbefore thepublicationofanotice in the month period.Theassociationmaynotbegintooperatebefore The associationislegallyincorporatedattheendofathree- receipt isthentobeissued. orthedélégation.Thelawstatesthat seat ofthegouvernorat to thelaw”. of alegalprovision. Asarule,theonlyreason givenis“contrary object tothecreation ofanassociationbyinvokingaviolation Even ifthereceipt isissued,theMinistryofInteriormaystill offiJournal ciel andtherefore, theformationofassociation. process, preventing thepublicationofrequired noticeinthe declaration. Offi cials takeadvantageofthatvoidtodisruptthe The lawsetsnotimelimitfortheissuanceofareceipt of must bearafi scal stamp. of theassociation.Three ofthefi ve copiesofthedeclaration name aswellthename,purpose,goalandaddress association islocated.Thefoundingmembersmustgivetheir orofthedélégationwhereat theseatofgovernorat 3 oftheLawonassociations.Therequest mustbedeposited The procedure fordeclaringanassociationisdetailedinArticle number ofincorporators)? 4 –Howeasyordiffi la création(OLPEC)havefacedthatproblem. Tunisie (CNLT) andtheObservatoire pourlapresse, l’éditionet reason ispolitical.BoththeConseilnationalpourleslibertésen provided, despitethefactthatthere islittledoubtthatthereal given willbeageneric“contrarytothelaw”,withnodetails association. Arefusal mustbemotivated.Asarule,thereason The MinistryoftheInteriormayobjecttoformationan (e.g. race, security, religion, politics)? 3 –Whatare thebasesuponwhichregistration canberejected a precarious situation.That is thecaseof associations” bytheauthorities,asituationthatleavesthemin operate “outsidethelaw”,sincetheyare labelled“unrecognized in itsfavour. Thenetresult isthatanumberofnewassociations association maynotbeginitsactivitiesbefore there isadecision Procedural delaysare frequent insuchmatters.Inanycase,the offiJournal ciel tribunal. Incasetheauthoritiesrefuse topublishthenoticein may lodgeanappealforabuseofpowerbefore theadministrative association orrefuse toissueareceipt, thefoundingmembers If theMinistryofInteriorrejects theregistration ofthe is denied, delayed (e.g. judicial, administrative? 5 –Are there effective remedies inthecaseswhere registration anciens résistants,l’Association tunisiennecontre latorture, aux des libertésenTunisie, L’Association desoutien internationale

prisonniers politiquestunisiens,l’Amicalenationaledes , anappealmaybelodgebefore thePrimeMinister.

cult istheregistration (e.g. time, cost,

Conseil national a ends. whichusesthejudicialsystemforitsown and thegovernment, increased theprecariousness ofassociationsbefore thelaw have beenintroduced against theLTDH). Thatamendmenthad been deniedmaysuethatassociation(more than30suchsuits become amemberofan Following theamendmentof1992,anyonewhoserequest to It iseasiertoinitiateproceedings againstanassociation. association. themselves inacourtactionthatisrelated toanobjectiveofthe authorizes theproceeding. Theassociationsmaynotassociate bodies,unlessthepartyconcerned orgovernment government in legalproceedings inmatterspertainingtofundsgivenbythe On theotherhand,associationsmaynotinitiateorintervene - - - unpaidmembershipfees; but onlyforthefollowing: The associationsmayinitiateorinterveneinlegalproceedings, legal proceedings. is entitledtorepresent theassociationincourtsandintervene acquires thestatusofalegalentity. However, onlythepresident the noticein registration, ormoreWith properly, withthepublicationof legal entity? 6 –Doesregistration automatically entailobtainingaseparate libres, aswell des écrivainslibres, l’Associationdesdirecteurs desradios l’Observatoire pourlapresse, l’éditionetlacréation,Ligue (Article 23). activities aswellanymeetingorgatheringsofitsmembers days) thepremises usedby anassociationandsuspendallits a motivatedorder temporarily closing(foramaximumof15 in order toinsure thatpublicorder willnotbedisturbed,issue The MinisteroftheInteriormay, incaseofextreme urgencyand DISSOLUTION ANDSUSPENSION PART II: company, atrust, aWakf)? and incorporate anassociationisdenied(e.g. incorporate asa 7 –Are there otherviablealternatives iftherighttofreely form pour larecherche scientiﬁ que etl’information. are notallowed,theonlyexceptionbeingFondationTemimi There aretotheLawonassociations.Foundations noalternatives obtain anauthorizationtoexistandoperate. the Constitution,thoseassociationsshouldnotbeobligedto association. the buildingsneededtopursueobjectivesof association; the premises orfurniture neededforthemeetingof

as the Syndicat national des journalistes. Under as theSyndicatnationaldesjournalistes. Journal ofﬁJournal ciel

association àcaractèregénéral , theassociationautomatically has dinars, ortooneofthosetwopenalties. imprisonment ofonetofi ve yearsandafi ne of1,000to10,000 non-existent orwhichhasbeendissolvedareliabletoatermof maintenance orthereconstitutionofanassociationrecognizedas 30 statesthat which hasbeendissolvedareliabletothesamepenalties an associationthatisnon-existentintheeyesofauthoritiesor to 500dinars.Individualswhofacilitatethereunionofmembers by atermofimprisonmentonetosixmonthsandfi ne of50 and 30.Article29statesthat on associationare liabletothepenaltiesprovided forinArticles29 Leaders ofassociationswhodisregard theprovisions oftheLaw September 2005withoutbotheringaboutlegalformalities. has ordered theclosingof11regional offi ces oftheLTDH since bothering aboutthenicetiesoflaw. Forinstance,theMinister premises andprevent itsmemberfrom meetingwithout In practicalterms,theMinisterwillcloseassociation’s its activities. closing oftheassociation’s premises andthesuspensionofall such acase,theMinistermayrequest atanytimethetemporary or publicmorality, orwhosepurposeispolitical(Article24).In association; whosegoalsoractivitiesunderminepublicorder whose activitiesseriouslycontraveneprovisions ofthelawon of fi rst instancetoorder thedissolutionofanyassociation The MinisteroftheInteriormayaskcompetentcourt court offi rst instance. by theassociation,candidatemaylodgeanappealbefore a goals oftheassociation or politicalrights,pursueactivitiesthatareincompatiblewiththe principles anddecisions,unlesstheindividualdoesnotenjoycivic accept asamemberanyonewhoendeavourstorespectits According tothelaw, or leave associations? 2 –Howstrictisthelevel offreedom ofmemberstoadhere to own object(Are such documentsimposed?towhatextent?) amend theirownstatutesandby-laws andtodeterminetheir 1 –Whatistheextentoffreedom ofmemberstodraft and ASSOCIATION ANDOPERATION PART III: to thedeclarationprocedure. be declared. Modifi rulesare cations totheinternal notsubjected section, branchordetachedpremises oftheassociationmust more informationthanwhatisprovided forinthelaw. Any in thelegislation,require from theassociationsthattheysupply association are modifi ed. Thoseforms,thatare notmentioned all declarationsofassociationandwheneverthestatutes Forms issuedbytheMinistryofInteriormustbeusedfor anyone whodirectlyorindirectlyparticipatetothe any associationàcaractèregénéralmust . Ifthemembershiprequest isrejected anybreachoftheLawispunishable . Article

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 86 decide onprojects andactivities?Ifyes, howandwhy? 5 –Are there anyinterference inthefreedom ofassociationsto limits theparticipationofwomen. women inassociationaloffices. However, theweightoftraditions against women,orthatwouldlimitprohibit theparticipationof There are noprovisions inTunisian lawthatare discriminatory offi limiting orbanningparticipationofwomen inassociational 4 –Are there anyrestrictions (legalordefacto)promoting, oversee theelectionprocess. soutien auxhandicapésBesma.“Supervisors”willfrequently as theAssociationtunisiennedesmères ortheAssociationde orOVG)such (Organisations véritablementgouvernementales, Associations well asontheso-calledAuthenticallyGovernmental jeunes avocatsandtheAssociationtunisiennedesmagistrat,as corporate bodieshavebeenforced ontheAssociationdes will alsoread “messages”andevenissueinstructions.Illegal meetings ofassociationsthatareThey closetothegovernment. offigovernment cials tobepresent atthegeneralassembliesor in thecorporatebodies.However, itiscommonpracticefor The lawdoesnotprovide forthepresence of“supervisors” “supervisors”, elections? attendance ofmeetings(Board, General assemblies)by 3 –Isthere anyinterference in the corporate bodies:e.g. - unoffi cial andmaytakemanyforms: those provisions. Theprohibition toholdameetingisoften In practice,theMinistryofInteriorsystematicallydisregards subject toanyformalities. of theInterior. Privatemeetingsmaybeheldfreely andare not held inTunis, thenotifi cation mustbedepositedattheMinistry atleast72hourspriortotheevent.Ifmeetingis gouvernorat Organizers musthoweverdepositanotifi cationattheseatof may beheldfreely andare notsubjecttopriorauthorizations. gatherings adoptedonJanuary24,1969,such According tothelawpertainingpublicmeetingsand international travel) restricted inanyway? private and publicmeetings, tomove freely (including 6 –Istheassociation’s righttofreely assembleororganize the premises. its activities,thesecurityforces maybeusedtoblockaccess could beusedinacourtoflaw. Iftheassociationproceeds with activities andwillavoidsendingoutwritteninstructionsthat to defi ne thatterm.TheMinisterwillinterveneorallytoprohibit Minister oftheInteriorhasdiscretionary powerwhenitcomes The lawprohibits associations“ofapoliticalnature”. The Ministry. Asanexample,thepoliceoffi cial oftheElOmrane Oral messagesgiventotheorganizersbyoffi cials ofthe ces (e.g. Board)? develop internetsites)? right tofreely communicate(e.g. accesstomedia, publishand 7 –Are associations subjectedtospecifi AISPPT, facemanydiffi culties indevelopingtheirwebsites. reason, independentNGOs, suchastheLTDH, CNLT and iswidespread inTunisia.Censorship oftheinternet Forthat meet theirobligationsordelivertheprintedmaterial. context, theprinter, thepublisherordistributormayrefuse to copyright process equated an authorizationtopublish.Inthat major associations.Theauthoritiesactasiftheregistration of regard havebeenformallyeased,theyare stillusedtopressure to theregistration ofcopyright, andwhileprovisions inthat bythePressPublications are governed Law. Theyare subjected president oftheAssociationdeluttecontre latorture. and formervice-president oftheLTDH, andRadhiaNasraoui, CRLDHT andtheEMHRN,KhemaisChammari,aformerdeputy targets ofsuchcampaignsare KamelJendoubi,president ofthe as SihemBenSedrine,OmarMestiriandRaoufAyadi. Other well asagainsttheCNLCandoffi cials ofthatassociationsuch and itsleaders,suchasMokhtarTrifi andKhémaïsKsila,as advocates. Suchattacksare oftenlaunchedagainsttheLTDH and willslandertheirleadershipaswellpro-democracy launch campaignsthatare hostiletoindependentassociations tothem.Ontheotherhand,mediagroupsconcern willoften releases oropinionstonationaleventsmattersthatare of not toinviteindependentassociationsandignore theirpress associations restricted. Officials ofthemediareceived instructions Independent associationsseetheiraccesstothelocalmedia and Mr. Abbou. the caserecently fortwolawyers,Mr. Nouri,founderofAISSP, country, participantsmaybeillegallyprevented totravel,aswas where ameetingistobeheld.Incaseofmeetingsoutsidethe to prevent membersofanassociationtotraveltheregion outside thecountryisoftenfl outed. Policeforces maybeused the Constitutionof1959,righttomovefreely insideor Despite thefactthatfreedom ofmovementisguaranteedby on theSocialforumatheadquartersofLTDH. 26 and27,2007,thepoliceprevented theholdingofaconference been prevented toholditscongress since2005.Recently, onMay For instance,theLigueTunisienne desdroits del’Hommehas - - works, premises already leasedtosomeoneelse,etc.) fallacious pretexts (non-existentwaterdamagesorrenovation point where theyare compelledtobreak theleasebyinvoking Owners ofbuildingswhere meetingare heldare pressured tothe held are surrounded bysecurityforces; priornotice,thepremises whereWithout themeetingistobe on April14,2006; district inTunis gavesuchamessagetooffi cials oftheLTDH c limitationontheir jeunes magistrats. theCNLTin casesconcerning ortheAssociationtunisiennedes associations are systematicallyblockedsuchaswasthecase theoretical only. Legalprocedures undertakenbyindependent power, theremedies andappealsavailabletoassociationsare Keeping inmindthelackofindependencejudicial 10 –Are there effective remedies andappeals? the decision-makingprocess onmatterofpublicinterest. There are noconsultationswithindependentassociationsduring nature andlevel ofsuchconsultations? participation indecidingonpublicinterest issues?Whatisthe 9 –Istheparticipationofassociationssoughtforopinionor the MinisterofForeign Affairs (Article17). de siège after havingobtainedaspecialauthorization(called of theInterior. Theymaybecreated ormayoperateinTunisia only types ofassociationscomeunderthesupervisionMinistry members are foreign nationalsforatleasthalfofthem.These while headquartered inTunisia, isheadedbyaboard whose of anytypewhichhasitsheadquartersoutsidethecountry, or, association. Aforeign associationisdefi ned asanassociation associations canbeassimilatedtothecreation ofaforeign level,networkingwithinternational At theinternational of anassociation. of associationsissubjectedtothesamerulesasformation At thenationallevel,formationofanyfederationornetworking with otherslimited(bothdomesticandinternational)? 8 –Isthefreedom ofassociationstocooperate andnetwork from collectingfundsfrom thepublicwithoutpriorauthorization. to specialrules.However, adecree of1922prohibits anyone the Tunisian Suchdonationsare government. notsubjected The lawdoesnotprohibit donations from othersources than stated objectives(Article8). well asthebuildingsthatare strictlynecessaryforfurtheringits to about15euros), premises andmaterialforitsoperations,as membership fees(thatmaynotexceed30dinars,equivalent bodies,acquire,and government ownadminister authorization, andoutsidefundingprovided bythegovernment incorporated” associationsmay, withoutanyspecifi c Under theLawonassociationsof1959,any“regularly receive andownproperty andfunds?How? 1 –Are there anylimitationontherightofassociationsto FUNDING ANDTAXATION PART IV: ) delivered bytheMinister, underrecommendation of

autorisation freezing ofasset,jailtermsand heavyfi nes. measures mayresult intheimpositionoffi nancial audit,the annual balancesheet.Nonobservanceofthosevariouscontrol request ofthatministry:dailyaccounting,inventoryreceipts, procedures thatmayresult invariouscontrol measures atthe the MinistryofFinancemustfollow“prudentmanagement” isaboveaceilingsetby and politicalpartieswhose“turnover” Cash fundsmaynotexceed5,000dinarsinvalue.Associations be received thougharecognized intermediarylivinginTunisia. per year).Fundsoriginatingfrom outsidethecountrymayonly membership feesabovetheceilingestablishedbylaw(30dinars funding from unknownsources andare prevented from collecting political partiesare prohibited from acceptingdonationsor to fundingwhatevertheirobjectives.Thus,associationsand independent actorsofcivilsocietyandthatrestrict theiraccess a numberofprocedures andpenaltiesthatmaybeapplied to in conformitywiththeLawof1959).Thenewlawintroduces illegal activities associations oractivitiesrelatedwithterroristoffencesother Article 68prohibits even more. must follow, NGOshaveseentheiraccesstofundsreduced of socalled“prudentmanagement”procedures thatthe NGOs placed underongoingfi theintroduction nancial supervision.With a decisionoftheMinistryFinance,associationsmaynowbe law restricts evenmore individualandpublicliberties.Following criminalizing theactivitiesofindependentassociations,new violate freedom ofthepress andfreedom ofexpression) andby funds. Byaddingnewoffences, procedures andpenalties(that laundering, effortsinthefiinternational ght againstterrorismandmoney the lawofDecember10,2003,alsocalledLawto The legislationdoesnotprohibit foreign funding.However, 3 –Are there specifi of suchfundsissubjectedtoanannualverifi cation process. related documentseachyeartotheMinistryofFinance.Theuse that receive suchfundsmustsubmitafi nancial statementand Article 9oftheLawonassociationsstatesthatanyassociation associationsisimpressivegovernment butremains undeclared. bodiestopro-The leveloffundinggrantedbyvariousgovernment the funds, otherthanby theconditionsoftheirgranting? 2 –Are there anylimitationsonthe rightofassociationstouse tunisienne opponents andcivilsocietyactors,inparticulartheLigue imprisonment. Thisprovision hasoftenbeenusedagainst Offenders maybecondemnedtoupthree months

des droits del’Homme(LTDH). drastically limitsthepossibilitytoacquire such (suchastheactivitiesofassociationsthatare not anytypeofsupportandfundingindividuals, c limitationsonreceiving foreign funds? support 87

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 88 Associations donotenjoyanyspecifi c fi scal benefi ts. conditions? 5 –Doassociationsbenefi Institut arabedesdroits del’Homme. have beenusedin2005tofreeze thefi nancial resources ofthe should benotedthattheprovisions oftheLawtofi ght terrorism - hasbeengrantednear-discretionary powersofsupervision.It independence -theinspectiondivisionofMinistryFinance bodiesisineffective.government Abodydevoidofany Control ontheuseoffundinggrantedtoassociationsby 4 –Howeffectively are theselimitationsonfundingenforced? rights (June15,2004). Tunisia andtheEuropean Uniononthepromotion ofhuman and theletterofArticle2associationagreement between Nations inDecember1998.Themeasure alsoviolatesthespirit protection ofHumanRightsDefenders,adoptedbytheUnited measure iscontrarytotheprovisions oftheDeclarationfor public interest, asituationthatdoesnotapplytotheLTDH. That pertaining tocharitableassociationsrecognized asbeinginthe of Law59-154onassociationsandthedecree ofMay1922 blocksthosefundsbyinvokingtheprovisionsgovernment LTDH, aswellforreforming thejudicialsystem.TheTunisian andrestructuring ofthe have beenusedforthemodernization Initiative forDemocracyandHumanRights(EIDHR),thatwould oppose grantsfrom theEuropean UnionundertheEuropean invokedthatlawto and arbitrarypractices.Thegovernment funding andmuzzleindependentassociationsthrough selective generally termedasterrorist, theaimbeingtodryupsources of lumping togetherlegitimatecivilsocietyactivitieswithactions All thesemeasures constituteanunprecedented attemptat ts from tax benefi t? ne what Under ts? measures are appliedincaseofviolations? 3 –Whatpenalties(e.g. criminal, fi lack transparency andgoodgovernance. benefi t from fundingfrombodies),often variousgovernment (andwho those associationsthatare closetothegovernment of thefi nancial resources ofthoseentities.Themanagement themanagement statements andotherinformationconcerning Only membersofanassociationhaveaccesstothefi nancial to thepublic? 2 –Are accountsandotherinformationtransparently available of theRepublic. the fundsare oftengranteddirectly bytheOffi ceofthePresident above, thatcontrol isunregulated inpractice,themore sothat supervisory control oftheMinistryFinance.Aspointedout Funding grantedbytheTunisian isunderthe government the Declaration)? authorities withtheprinciplesoffreedom (checkPrinciple16of security apparatus)? Howconsistentare theactivitiesofthese associations (e.g. courts, ministries, independentbodies, and 1 –Whatare thesupervisoryauthoritiesthatoversee AND TRANSPARENCY CONTROL AUTHORITY, GOVERNANCE Part V: a lawsuitornot.Adiscretionary powerthatisopentoabuse. are thatdecidestofi applicable.Itishoweverthegovernment le the penalcodepertainingtoembezzlement,forgeryandfraud, bycivillaw.manage societiesgoverned In principle,provisions of The penaltiesare thesameasthosethatapplytoindividualswho nes, etc)andharassment RECOMMENDATIONS • • 3. With regardtotheclimaterequiredforsustainable developmentofcivilsociety • • • • Funding andTaxation • • • • Moregenerally, respectandprotecttherighttoprivacyofhumanrightsdefenders; • • • Guaranteetheaccessofassociationstopublicmedia(pressagencies,radio,television,newspapers,etc); • • Liftallrestrictionslimitingaccesstotelephone,fax,emailandinternetservices; • • • Organization andOperation • • Givetojudicialtribunalsexclusivecompetencedissolveorsuspendanassociation; Dissolution andSuspension • • • • Formation andIncorporation • • • 2. With regardtothelawsandpracticespertainingassociationscivilsocietyorganizations • • 1. With regardtothepolitical,democraticandhumanrightssituation THE TUNISIANGOVERNMENTISCALLEDUPONTO: Encourage theparticipation ofcivilsocietytothedecision-making processpertaining topoliciesofpublicinterest. of monitoringtherespecthuman rights; Internationale deSolidaritéavecles PrisonniersPolitiques,andconversely, encouragethoseorganizationstofulfi ltheirmis l’Homme, theConseilnationalpour leslibertésenTunisie, the Associationdeluttecontrelatortureandthe Put anendtoallharassmentmeasures againsthumanrightsorganizations,inparticulartheLiguetunisienne desdroitsde end anyconfusionbetweenterrorism andpeacefulopposition. Modify theprovisionsofLawDecember10,2003,alsocalled Lawtofi ght terrorismandmoneylaundering,inorder etc.), inparticularthefi nancing grantedbytheEuropeanUnion; l’Association tunisiennedesfemmesdémocrates,Association tunisiennespourlaRechercheetledéveloppement, Put anendtothepracticeofblockingorfreezingfi nancing ofassociations(Liguetunisiennedesdroitsdel’Homme, Adopt andimplementasystemthatwillprovideforthetransparent equitabledistributionofpublicfunds; associations toresortfreelydonations(publicorprivate)inatransparent mannerandbysimplyinformingtheauthorities; Abolish restrictionslimitingthefinancing ofassociations,inparticularbyeliminatingmembershipfeeceilingsandauthor possessing legalpersonalitytoassociatethemselvesacourtaction incasesrelatedtotheirobjectives. thepossibilitiesforassociationtoinitiateand takepartinlegalproceedings,particularbyauthorizingtheassoci Widen of theprocedureonregistrationcopyright,thatshouldnotinclude therequirementofpriorauthorizationtopublish; Guarantee theenjoymentbyassociationsoffreedompressand freedomtopublish,inparticularbyafairimplementation fundamental rightsofmembersassociationsandhumandefenders; Guarantee thepossibilityofaccessingeffectivejudicialremedieswithinareasonableperiodincaseviolation of independentorganizations) Put anendtoabusiveinterferencebypublictelephoneoperators(suchastheinterruptionofcommunications telecommunications; and Repeal alllegalconstraintspertainingtotheinternet,inparticularprovisionsoflawsgoverningpostalservice Put anendtointernetcensorship,inparticulartheblockingofsitesthatarecriticalgovernment,andcontroloverem decision; Put anendtoallrestrictionslimitingthefreemovementofmembersassociations,exceptbyadulymotivatedjudicial Bring tojusticeindividualswhophysicallyattackoffi cials ofassociations; usedtointimidate,ofassociationsmembersandtheirpremises; Put anendtopolicesurveillance, to prohibittheholdingofameetingwithouthavingbeengivenmandatedosoforlegitimatecause; Create theoffenceofviolationrightassembly, applicableagainstanyindividualorgovernmentoffi cial whointerven pronounced bytheauthorities. Guarantee accesstoaneffectivejudicialremedy, withsuspensiveeffectandwithinareasonableperiod,incaseofdissoluti reconstruction ofassociationsthatarerecognizedasnon-existentordissolved. Amend articles29and30thatprovideforajailsentenceanyone Subject theregistrationofmodifi cations ofthestatutesassociationtoasimpledeclaration; registered, whichwillallowthepublicationofnoticein ensure that,incaseofnon-responsetothedepositbyauthoritieswithinasetperiod,associationwillbedeemedduly Impose ontheauthoritiesobligationtoissue,withinashortperiod,receiptfordepositofregistrationrequest association, toinitiatejudicialproceedingsopposetheregistration; system ;ensure,wheneverthecasearise,thatMinisterwillbeable,withoutsuspensiveeffectonactivitiesof Abolish theprocedureofpriorapprovalforregistrationassociationsandestablish,de particular, remediesincaseofabusepowerbytheMinisterInterior. Guarantee, toassociationsandtheirmembers,effectiveaccess,withinareasonabletime,thejudicialsystemregarding,in in ordertoensuretheequalityofallcitizensbeforelawmatterspertainingfreedomassociation; Guarantee theimpartialityofauthoritiesregardingvariousstageslifeassociations,aswellalltheirendeav the waytoabusesofpowerbyMinisterInterior; provisions,inparticularthosepertainingtotheclassifidiscriminatory cation ofassociationsandallthoseprovisionsthato Reform theLawonassociationsinordertoguaranteefullenjoymentoffreedomassociation,andeliminateall Rapporteur onthefreedomofexpressionincoursehismissiontoTunisia inDecember1999. in particularthosepertainingtothepresscodeandlawonpoliticalparties and expression,suchmeasuresconsisting,amongotherthings,intherevisionmodifi cation ofanumbernationallaws, and bylegalizingthosethatarenowforcedtooperateillegally[...]newmeasureswillfullyprotectthefreedomofopin Promote “ jurisprudence oftheUnitedNationsCommitteeonHumanRight; set forthintheotherinternationalinstrumentsonhumanrightsratifi ed byTunisia, andtotakeintoaccounttherelevant Act inconformitywiththeprovisionsofInternationalCovenantonCivilandPoliticalRightsnormsprinciples a climatethatwillencouragethedevelopmentofcivilsocietybyfacilitatingcreationindependentassociations Journal offiJournal ciel who participatesdirectlyorindirectlytothemaintenance ; ”, asrecommendedtheUnitedNationsSpecial jure andde facto , thedeclaration ations ours, izing sion pen ion ail. on es ;

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Freedom of association in Turkey

Introduction

ENABLING ENVIRONMENT OF CIVIL Constitutional and legislative amendments had positive effects SOCIETY - “THE GENERAL SETTING” on democracy and human rights. However, these felt short of bringing about structural changes in the State. 1 - Political, democratic and Human Rights Specifi c contexts In the framework of the reform process, Turkey has signed a number of international instruments However, regarding Turkey’s At the Helsinki European Council of December 1999, Turkey fulfi lling of its obligations under the instruments problems are was offi cially recognised as a candidate country to the European being experienced in both legislative and implementation Union (EU). This marked the beginning of a reform process in aspects. Turkey in the context of human rights and democracy. But despite the process of democratisation initiated for purposes As a matter of fact almost no step was taken and no serious of harmonisation with the EU’s Copenhagen political criteria, change was introduced in such critical areas as the rule of law, problems in Turkey as regards human rights and democratisation the independence of the judiciary, the minority and cultural rights, remain unresolved during the last seven years. the autonomy and democratisation of universities, the reduction of inter-regional disparities, refl ecting the pluralistic nature of the Since 1999, a total of 8 harmonisation packages were introduced. society to legislative and executive power and seeking political These packages include amendments in Turkish Penal Code, solutions to the Kurdish problem. Law on Fight Against Terrorism, Criminal Procedures Law, Administrative Procedures Law, Law on the Establishment Towards the end of 2004, positive conditions which had facilitated & Procedures before State Security Courts, Press Law, normalisation and laid a ground conducive to democratisation Association Law, Political Parties Law, Law on Education and and improvements in human rights started to turn into negative in Teaching of Foreign Languages, Law on Directorate-General for some respects. The re-emergence of armed clashes contributed Foundations and the Foundations Law. to the re-strengthening of discourse on “fi ght against terrorism” and heightening the voice of nationalistic circles while facilitating Among amendments teaching in private courses and broadcasting the presentation of demands on cultural rights and peace as on languages spoken in Turkey other than Turkish, the abolition “support to separatism”. of the sentence “legally banned languages” that existed in some laws, and enabling foundations to own property and providing Between 2005 and 2007, no signifi cant progress was made in the opportunity for renewal of the trial after the decision of the democratisation and improvement in human rights situation. European Court of Human Rights, can be counted as signifi cant This period is rather marked as deterioration from the reform amendments. process. Developments during this period can be summarised below. Another important fact, which is missed in evaluations, is that armed clashes in Kurdish areas had nearly come to an end in The amendments to the anti-terror law were adopted in June the period between 1999 and 2004. This fact facilitated the 2006 as a response to the persistence of the armed clash in process of normalisation and boosted hopes of peace. the southeastern part of Turkey. Under the new law, the list of what constitutes a terrorist offence was extended and a wide defi nition of terrorism maintained. This has had an impact on associations dealing with the sensitive issue of the rights of the Kurds.

90 issues. very active.However, noneofthemisonlyspecialized intorture of Turkey (TIHV)andtheHumanRightsAssociation(IHD)are rights organizations.Assuch,theHumanRightsFoundation Combatting torture hasbeenoneofthemainactivitieshuman in Turkey. the legalaidoffi ces.There isa totalof78Barassociationsacting Bar Associationisresponsible forestablishingandmanaging Lawyers. ThelattermentionsthattheBoard ofDirectors ofthe mainly bytheBarAssociations.Itisregulated bytheCodefor The legalaidtovictimsofhumanrightsviolationsare provided Association. Turkey; -Turkey; AmnestyInternational HumanRightsAgenda Rights FoundationofTurkey; HelsinkiCitizensAssembly- and SolidarityforOppressed People(MAZLUMDER);Human Human RightsAssociation(IHD);Organisationof with humanrightsissuesingeneralare ratherlimitedinTurkey: The numberofassociationsandfoundationsdealingdirectly Kocaeli with2,87%). Ankara with10,9%,Izmir5,19%,Bursa3,77%and located infi ve maincitiesofTurkey (Istanbulwith20,68%, foundations actinginTurkey. 43%oftheseassociationsare at theMinistryofInterior, there are 77110associationsand According todataprovided bytheDepartmentofAssociations 2 -Civilsocietylandscape Cyprus, secularismandtheKurdish issue. opinion onissuesrelated todomesticandforeign policyincluding senior membersoftheArmedForces haveexpressed their political lifehasincreased between2005and2007.Moreover, As aresult, theinfl uence oftheArmedForces onthesocialand and humanrightsactivistsforexpressing nonviolentopinions. used toprosecutewriters,publishers,academics journalists, criticise shouldnotconstituteacrime,ithasrepeatedly been 301 includesaprovision thatexpression ofthoughtintendedto more than100individualshavebeenundertrials.Althougharticle Since theenforcement ofthenewTurkish PenalCodein2005, commit acrime. persons whoknowinglyandwillinglyhelpanorganizationto found intheArticle220ofTurkish PenalCodepunishing denigration ofTurkishness’ (Article301).Anotherrestriction is the exercise offreedom ofexpression andprohibit itas‘Public new Anti-Terror Lawandintheprotecting Atatürkprevent expression. SeveralarticlesintheTurkish penalCode,inthe In thisregards there are severe restrictions onfreedom of 1 available athttp://web.amnesty.org/library/Index/ENGEUR440362004?open&of=ENG-TUR. Cf Amnesty International, “Judicial harassmentofhumanrightsdefenders Turkey - ‘repeal onelaw, useanother’”, AI Index: EU domestic laws. Treatiesamendment givessupremacy totheInternational over The Turkish Constitutionwasamendedin 2004 andthis 3 -Legislation on arbitrarymotivationandresult inheavyfi nancial penalties of thisformstateharassment.Prosecutions are oftenbased isacharacteristicexample The IHDcase(ÝnsanHaklarýDernedi) which encounterseriousproblems regarding theprocedures. investigations are regularly openedagainstsomeassociations, are subjectedtojudicialharassmentbytheauthorities.Trials and It isimportanttounderlinethatcertainhumanrightsassociations scrutiny oftheDirectorate GeneralforFoundations. Georgians (1)havetheirreligious foundationsunderthetight Greeks (60),Jews(12),Keldanis(1),BulgariansAsyrians to getorganized.Recognisedminoritiesi.e.Armenians(48), defending therightsofminorities.Romashaverecently started There are alsoanumberofassociationsandfoundations carry outactivitiesaimingatimproving theconditionsinprison. human rightsorganisationsandsomechildren organisations NGOs devoteitsworksolelytoprisoners.However, mostof political prisoners,suchasTAYAD andTUHADFED.Noother These organisationsare establishedbyfamilymembersof The numberoforganisationsdealingwithprisonersislimited. based approach isnotcommonlyusedbytheseorganizations. deafness andblindness.Actingasservicesproviders, theright four federationsworkingonmentalandphysicaldisabilities, consists of61branchesthroughout thecountry. There are over thecountry. Asanexample,AssociationforHandicaps The organisationsdealingwithdisabledpeopleare numerous Childrenfor ChildRightsincludingInternational Centre. NGOs dealingwithchildren rightshaveestablishedaPlatform of 20BarAssociationsdealingwithchildren rights.InAnkara,9 children issues.InadditiontotheseNGOs,there isalsoanetwork There are more than100organisationsinTurkey dealingwith Istanbul andAnkara. women organisationsisunevenandthemajoritylocatedin to 500throughout thecountry. Thegeographicaldistributionof in Turkey. According tosomesources, thenumberisnowup study showedthatthere were atotalof300womenassociations them bymunicipalitiesandwomenorganizations.In2003a (Social ServicesandChildren Protection Institution)and16of women inTurkey. 20ofthemare runbytheStateauthotirites righs issues.Asanexample,there are 36ShelterHousesfor There isawidenumberoforganisationsdealingwithwomen’s R 44/036/2004, November 2004, 1 . 91

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 92 2 - - - - - LawonFoundationsNo2762(1935) - RegulationofAssociationsLaw(2005) - consists inthefollowinglaws: The legalframeworkregulating thefreedom ofassociation the European Commission(RegularReport,2006,p.15). standards”was “generallyinlinewithinternational according to A newlawonAssociationswasputintoforce inJuly2004,which c) Nationallawonfreedom ofassociation authorization. 2001. Itgrantstherighttoformanassociationwithoutprior July 23,1995,andthen,bytheLawn°4709ofOctober3, to formanassociation,wasamendedbytheLawn°4121of theright The article33oftheConstitution1982,concerning European Community, theConstitutionwasamendedin2001. After decadesofrepression, andunderthepressure ofthe b) Constitutionalprovisions - - - - of Associationare : InstrumentstowardsThe mostimportantInternational Freedom ratifi instrumentsonFreedoma) International ofassociation TÜSEV, ComparativeReporton Turkish Association LawProvisions, September 2004. public benefi t forfoundations. details aboutthecriteriaandconditionstoobtainstatusof The GeneralStatementonCorporationTax (#83),whichgives Code) Civil foundations (Nos56-117oftheCode4722concerning Provisions oftheCivilCode pertainingtoassociationsand Parliament) The current draftlawonfoundations(pendingapproval inthe according totheCivilCode-lastrevision wasmadeon1991) Foundations Regulations(1970)(forfoundationsestablished Law No5253onAssociations(23/11/2004) formulated 3reservations onarticles17,29,and30. Convention ontheRightsofChild(ratifi ed in1992).Turkey Turkey formulatedareservation onarticle27, on August15,2000andratifi ed onSeptember23,2003), but CovenantonCivilandPoliticalRights(signed the International is themosteffi cient conventionsignedbyTurkey, on January29,2002,thelastreservation wasabolished.This reservations. In2002,theemergencylawwasabrogated and In 1991,1992and1993,Turkey reduced progressively its one ofthembeingonfreedom ofexpression andassociation. But onMay10,1990,Turkey formulatedseveralreservations the European ConventiononHumanRights(ratifi ed in1954). in 1949), the UniversalDeclarationofHumanRights(acceptedbyTurkey edbyTurkey dissolution oftheassociation. who canrefer thecasetoCourtinorder toproceed inthe document, thepublicauthoritycaninformPublicProsecutor within 30days.Incasetheassociationfailsinrectifying the submitted, itnotifi es theassociationtorectify thesedocuments But, ifthepublicauthorityfi nds irregularities inthedocuments laws andethics(Art.56§2Turkish CivilCode). Registration canberejected onlyifitsobjectiscontrarytothe (e.g. race, security, religion, and politics)? 3. Whatare thebasesuponwhichregistration canberejected entered intoaRegister. Statute oftheassociationisapproved thentheassociationis The registration systemisbasedonnotifi cation. Incasethe information/notifi 2. Istheregistration systembasedonLicensingorsimple unincorporated associations. The legalframeworkdoesnotrecognise non-declared or associations? 1. Doesthesystemallowfornon-declared orunincorporated FORMATION ANDINCORPORATION Part I: administration refuses toregister theassociation. the legalpersonalityexistssincenotifi cation, evenifthe dissolution hastobeprounounced bytheCourt.Therefore, Yes. Incasetheassociationisviolatingexisting laws,the legal personality? 6. Doesregistration automaticallyentailobtainingseparate Court ofHumanRights. associations canappealtocourtsandatlasttheEuropean In casetheregistration isdeniedbythepublicauthorities, denied, delayed (e.g. judicial, administrative)? 5. Are there effective remedies inthecaseswhere registration is issues of associations,particularlyforthosedealingwithunpopular requirement “ persons orlegalentities The Turkish LawonAssociationsrequires aminimumof“ number ofincorporators)? 4. Howeasyordiffi ” 2 .

arguably posesapracticalobstacletotheformation cation? cult istheregistration: (e.g. time, cost, ” toestablishanassociation.This seven 1. Whatare thecauses/grounds ofdissolution/suspension? associations andfoundations. Freedom ofAssociation,thebasisfordissolvingorsuspending The Constitutiondefi nes inArticle33§4,regulating the DISSOLUTION ANDSUSPENSION Part II: formalities. decided toestablishcooperativesinorder toreduce the However, afterthelegalreform, somewomenorganisations regions before theamendmentofAssociationsLawin2004. Establishing acompanywascommoninsomefi elds and company, atrust “Wakf”)? and incorporate anassociationisdenied(e.g. incorporate asa 7. Are there otherviablealternatives iftherighttofreely form - c - - - - b -Prohibited activities a - Associations (2004)indicatesthecausesofdissolution: cases prescribedbylaw “ The onlygrounds fordissolutionorsuspentionare legalgrounds: Associations maybedissolvedorsuspendedfromactivity[...]in a workinglanguage. the reasons refered towastheuseofkurdidh languageas Diyarbakir Kürt-Der(Kurdish AssociationDiyarbakir).Oneof Court offirst instanceNo2 ofDiyabakirdissolvedtheassociation The languageusedshouldbeTurkish. OnApril 20, 2006,the activities; The associationscannothavemilitaryorparamilitary LGBT rights. to dissolvetheassociationLambdaIstanbul,whichdefends ofIstanbulhasrecently56). Thegouvernor referred arequest with theConstitution(art.33and41)CivilCode on thegrounds thatitsgoalsandactivitieswere confl icting Solidarity andCulturalAssociationtothePublicProsecutor Travesties, Transsexuals, GaysandLesbiensProtection, Bursa referred arequest todissolvetheassociationRainbow of laws (art.30-bAssoc.Law).Forinstance,thegouvernor execute actswhichmayconstituteanoffense according to the expressly restricted bytheConstitutionorlaws,andcannot Associations cannothave,asitsaims,goalsoractivities (art. 30-a) indicated intheStatuteasobjectiveofassociation. Associations cannotcarryoutactivitiesotherthanthose form andattacheddocuments(art.60) Violation orbreach ofcertainrequirements inthe notifi (art. 29Assoc.Law) The useofcertainnamesandsignsinviolationthelaw

” (art.33,§4,Constitution).TheLawon

cation own object?(Are suchdocumentsimposed?towhatextent?) amend theirownstatutesandby-laws andto determine their 1. Whatistheextentoffreedom ofmemberstodraft and ORGANIZATION ANDOPERATION Part III: of theoffense. Flagrant Crimes,anddonotdependonthelocationtime the provisions oftheLaw3005related toTrial Procedures in The prosecution andinvestigationare carriedoutaccording to the lattercanappealtoCouncilofState. the Courtdecidestodisadvantageofassociation,then activities. association before theCourtfordissolutionorsuspensionof Public Prosecutor. Thelatterhasthecompetencetosue regulation orstatutesofanassociation,ithastoinformthe In casetheadministrationﬁ nds violationsinthedeclarations, “administrative decisionshallbecancelledautomatically”. If thejudgedoesn’t pronounce ajudgmentwithin48hours,the “ obliged bythesameconstitutionalarticletosubmititsdecision However, thepublicauthoritythatsuspendedassociationis power tosuspendtheassociationfromactivity effect apprehension,anauthoritydesignatedbylawmayhave to preventtheperpetrationorcontinuationofacrime national securityorpublicorderandincaseswhereitisnecessary But, thesamearticlestatesthat“ activity bydecisionofjudgeincaseprescribedlaw stipulates: “ decisions, according toArticle33-4oftheConstitutionthat Only theJudiciarypronounces dissolutionorsuspension Judiciary, Executive ...)? 2. Whatauthoritiespronounce thesedecisions(role ofthe - there are legalandpractical limitations.TheDepartmentof statutes andby-lawstodetermine theirownobjectives, Although associationsare free todraftandamendtheir own to, forexample“ The AssociationscanapplytoAdministrativeCourtwithademand proceeded before thecivilcourtspursuanttothisLaw(art. 18). The ordinary trialprocedure isapplicableintheactionstobe 3. Are there effective remedies andappeals? for approvaltothejudgeinchargeofcasewithin24hours ground forsuspensionorannulation. information. Failingtorecover ofthecontrariestolawisa is requested bytheAssociationLawandcontainaccurate By-laws, declarationsandstatus,shouldbeconformtowhat

Association maybedissolvedotsuspendedfrom suspend thedecisionofAdminsitration In caseswheredelayendangers ”. ”. ”. If ”. 93

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 94 internationally ordomestically.internationally the freedom ofmovementmemberstheassociation,either meetings. Furthermore, theAssociationLawdoesnothamper public meetingscanapplyforlargedemonstrationsor meetings. However, inpractice,theLawondemonstrations and There isnorestriction onorganisingprivateand public restricted inanyway? and publicmeetings, move freely (includinginternationaltravel) 6. Istheassociation’s righttofreely assembleororganize private since theenforcement ofthe newAssociationLawof2004. There hasnotbeenanyinterference onprojects andactivities decide onprojects andactivities?Ifyes, howandwhy? 5. Are there anyinterference inthe freedom ofassociationsto women associations. of womeninassociationallifeisratherlimited,exceptwithin sect, lineage,societyandclass.However, defacto,participation discrimination basedonlanguage,race,colour, sex,religion, which grantsequalrightstothemembersandbans The AssociationLaw(art.68)containsanarticleonequality offi limiting orbanningparticipationofwomen inassociational 4. Are there anyrestrictions (legal orde-facto)promoting, or elections. There isnointerference inrelation toparticipationinmeetings “supervisors”? attendance ofmeetings(Board, General Assemblies)by 3. Are there anyinterference in thecorporate bodies: e.g. - - Awrittennotifi cation isrequired (art.66). the AssociationLaw. Freedom toadhere toandleaveanassociationislaiddownin leave associations? 2. Howstrictisthelevel offreedom ofmemberstoadhere toor interferes structure intotheinternal ofassociations. to establishstructures oftheirchoice.Asaconsequence,it for theirstatutes.Thistemplatedoesnotallowassociations template provides theassociationswithgeneralframework for thestatutesofassociationspublishedonitswebsite.This Associations attheMinistryofInteriorhasproduced atemplate - by-laws oftheassociation member “ Membership canalsobeautomaticallyterminatedifthe meaning of“ on justifi ed grounds may bemadetothisdischargebyarguingthatitisnotbased discharge onjustifi ed grounds are notclearlyindicatedintheby-laws;amembermayonlybe objections are notadmitted.But,“ motivated inaccordance withtheby-laws.Inthatcase, Discharge from theassociationisalsopossible(art.67)if ces (e.g. Board)? loses thequalifi cations requiredbythelawor justifigrounds ed ”. However, thelawdoesnotindicate ” (art.65). ”. ”. Inthissituation,“ if thereasonsofdischarge an objection functional. effectively overseethelegislativeandexecutiveactivitiesare not The institutionalstructures through whichthecivilsociety could account theopinionandrecommendations ofthecivilsociety. mechanisms withinthepublicadministrationthattakesinto the autoritiesandcivilsociety. There are nosatisfactory there isnoreal mediationthatcouldsupportdialoguebetween human rightsorganizationsandNGOsingeneral.Therefore, society andNGOs,bringaboutalackofpublicconfi dence in against humanrightsdefenders,representatives ofthecivil Attitudes andpracticesofoffi cials, politicians,andthemedia nature andlevel ofsuchconsultations? participation indecidingonpublicinterest issues?Whatisthe 9. Istheparticipationofassociationssoughtforopinionor and networking. There are somelimitationsintheAssociationLawoncooperation others limited(bothdomesticandinternational)? 8. Isthefreedom ofassociationstocooperate andnetwork with encounter somediffi culties indevelopingwebsites. publish anddevelopwebsites.However, theLGBTorganisations In general,there are nolimitationstoaccessthemedia, internet sites)? freely communicate(e.g. accesstomedia, publishanddevelop 7. Are associationssubjecttospecifi the law. donations. Thisprocedure hasbeenconsidered inconsistentto AI hadpublisheditsbankdetailsonwebsiteforpotential have recently frozenTurkey. thefundsofAmnestyInternational requires apriorpermissionfrom theauthorities.Theauthorities aid collectionbyassociationsandfoundationshasstrictrules.It within onemonthasoftheentrydateinregistry (art.22).The the real estatepurchased tothelocaladministrativeauthorities However, theassociationsare liabletomakeanotifi cation of on theauthorizationgivenbygeneralassembly done onthegrounds ofadecisiontakenbytheBoard, “ There isnolimitationonacquisitionofreal estateaslongitis and ownproperty andfunds?How? 1. Are there anylimitationontherightsofassociationstoreceive FUNDING ANDTAXATION Part IV: Civil Courtincaseadecisionfrom theBoard. The membersofanassociationhavetherighttoappeal 10. Are there effective remedies andappeals?

c limitationontheirrightto ” (art.22). based conditions? these processes prone todiscrimination? 5. Are publicfundsmadeavailable toassociations?How?Are granted publicbenefi t statusmaybeexcemptedfrom tax. decides, casebycase,iftheassociationsandfoundationswith taxes appliedingoodandservices.TheCouncilofMinisters Associations are payingtaxofrent, incometaxandotherrelevant In general,associationsare notexcemptedfrom taxes. 4. Doassociationsbenefi approval.could beconfusedwithapriorgovernmental requirements onbothassociationsandfoundations,which the AssociationRegulationsimposeburdensome notifi cation (a signifi cant improvement overthepriorlegalframework), activitiesandestablishcooperationabroadin international on Associationsspecifi cally permitsassociationstoengage aspects regarding cooperation.WhiletheLaw international The legalframeworkremains undulyrestrictive inseveral 3. Are there specifi civil societyorganisations. is anindicationofthelackconfi dence ofauthoritiestowards occassionally auditsallexpenditures madeinthiscontext.This each province. Althoughthere isnolegalground, offi cials of theirprojects totheDepartmentofAssociationswithin however, allforeign fundsbenefi ciaries should provide acopy The practicecannotberegarded asalimitationstrictlyspeaking; the funds, otherthanby theconditionsoftheirgranting? 2. Are there anylimitationontherightsofassociationstouse public benefi t statuswhichisdiscriminatorypractice. only availableforassociationsandfoundationswithgranted Public fundsare availablerestrictively. Besides,thesefundsare c limitationsonreceiving foreign funds? t from taxbenefi ts? Underwhat administrative authorities. the ChiefProsecutor’s Offi ce isnotifi ed immediatelybythelocal In caseofdeterminationillegalactivityduringtheinspection, building, premises andequipment. inspection duty, andtoenabletheiraccessthemanagement documents andrecords requested bytheoffi cers assignedwith Association membersare obligedtoprovide allinformation, must benotifi ed totheassociationsatleast24hoursinadvance kept incompliancewiththelaws.However, “ declared inthestatuteandwhetherstatutoryrecords are whether theassociationisoperatingindirection oftheobject local administrativeauthoritiesmaystartinspectiontodetermine When hethinksitisnecessary, theMinistryofInterioror administrative authorityeachyear, beforethemonthofApril their activities,incomeandexpendituretransactionstothelocal “ principles offreedom (checkprinciple16oftheDeclaration)? How consistentare theactivitiesoftheseauthoritieswith (e.g. courts, ministries, independentbodies, securityapparatus)? 1. Whatare thesupervisoryauthoritiesthatoversee associations administrative fi ne, andevenimprisonmentsentences. In casesofviolations,article32theAssociationLawapplies measures are appliedincasesofviolations? 3. Whatpenalties(e.g. criminal, fi transparancy rulesandprinciples. is noteasytoaffi rm thatallassociationsandfoundationshave information duringtheirGeneralAssemblies.Striclyspeaking,it Associations declare theiraccountsandotherrelevant to thepublic? 2. Are accountsandotherinformationtransparently available AND TRANSPARENCY OVERSIGHT, GOVERNANCE Part V: The associationsareobligedtosubmittheyear-end resultsof nes, etc)andharassment such inspections ”. (art.19) ”. 95

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRIES REPORTS 96 • Ensuretheenjoymentbyassociationoffreedomexpression,acomponenttheirassociativefreedom. • 3. With regardtotheclimaterequiredforsustainabledevelopmentofcivil society • Allowgreaterfreedomtoassociationsontheuseofforeignfunds. • Liftallrestrictionsonthefund-raisingactivitiesofassociations; • AbolishtheheavypenaltiesprovidedforinLawonassociations; Funding andTaxation fromthegovernmentcapacitytocontroldecisionprocessonorganizationofassociations. • Withdraw • Abolishthelegalframeworkatbaseofdiscriminationpertainingtolanguageinworkplace; Organization andOperation • Reducefromseventotwothenumberoffoundingmembersrequiredformanassociation. Formation andIncorporation • 2. With regardtothelawsandpracticespertainingassociationscivilsocietyorganizations • • • -TheUnitedNationsConventionontheRightsofDisabledPeople(signedbyTurkey) -TheOptionalProtocoltotheUnitedNationsConventionagainstTorture -TheFirstOptionalProtocoltotheInternationalCovenantonCivilandPoliticalRights - • • 1. With regardtothepolitical,democraticandhumanrightssituation THE TURKISHGOVERNMENTISCALLEDUPONTO: policies ofpublicinterest; Ensure, bywayofanadequateconsultationsystem,theparticipationassociationstodecision-makingprocesson Eliminate alldistinctionsbetweenassociationsandgeneralinterestassociations. Strive toﬁ nd apermanentsolutionthatwouldresolvetheKurdishquestioninpeacefulmanner. adequate complaintmechanism. orientations ormembershiptoanationalminorityinallmatterspertainingtheorganizationsofcivilsociety;setupan Eliminate allformsofdiscriminationbasedon,interalia,gender, race,language,religion,politicalopinionssexual human rightsinstrumentsoftheUnitedNationsandCouncilEurope. Amend theLawonfoundationstobringitinlinewithinternationalnormsfreedomofassociationassetforth Ratify thefollowinghumanrightsinstruments: relevant jurisprudenceoftheUnitedNationsCommitteeonHumanRights; principles setforthintheotherinternationalinstrumentsonhumanrightsratiﬁ ed byTurkey, andtotakeintoaccountthe Act inconformitywiththeprovisionsofInternationalCovenantonCivilandPoliticalRightsnorms general prohibitionofdiscriminationonthepartpublicauthorities Protocol No.12totheConventionforProtectionofHumanRightsandFundamentalFreedomsthatpertains

RECOMMENDATIONS Freedom of association in Europe

by Thibaut GUILLET

Introduction

1. Freedom of association is an individual freedom protected is estimated to be more than 3 million,5 representing on by all the major international and European human rights average 6 associations per 1,000 people (note that this fails instruments and by all the national Constitutions of the to take into account that registration is usually not necessary member states of the European Union.1 in common law countries such as the UK and Ireland).6 Of these States some have particularly high numbers of 2. Restrictions on freedom of association, as protected under associations: e.g. France has close to 800,000 registered Article 11 of the European Convention for the Protection associations encompassing 10 to 12 million volunteers;7 the of Human Rights and Fundamental Freedoms, have been United Kingdom has almost 500,000 voluntary organisations interpreted narrowly by the European Court of Human Rights with 600,000 employees representing 2,2 % of the total (“the ECtHR”) to the effect that: «only convincing and compelling workforce.8 It is estimated that 90% of Danish citizens are reasons can justify restrictions on freedom of association [...] members of at least one association, and that 73% are States have only a limited margin of appreciation.»2 members of several.9 Voluntary working time in Sweden is estimated at 480 million hours per year, the equivalent of 3. Furthermore, the importance of freedom of association within 300,000 full time jobs and worth 8 million Euros;10 whereas Europe is reﬂ ected in the fact that it is the sole region which Hungary hires more than 90,000 employees.11 German has agreed on an international Convention guaranteeing the associations are particularly active in the health and social right of any association, which has its headquarters in the sectors: they manage 40% of hospitals, 85% of youth clubs ratifying state to automatically enjoy the same legal capacity and 55% of old people’s homes.12 to act in another member State. The Convention of the Council of Europe on the Recognition of the Legal Personality 5. However, despite its strong protection in law by European of International Non-Governmental Associations (CETS No institutions and EU Member States and its widespread 124 of 24 April 1986) has been ratiﬁ ed by eleven states 3 as exercise by millions of citizens there are a number of disturbing of 1 September 2007.4 trends that are undermining its enjoyment. In particular, the so-called “war on terror” has resulted in the proscription 4. Supported by these guarantees, European citizens are very of a number of associations combined with restrictions on active third sector participants: among the 27 member States operations. This, together with other discriminatory measures of the European Union the number of registered associations has had a disproportionate impact on minorities.

1 The United Kingdom does not have a codiﬁ ed constitution but integrates the provisions of the European Convention on Human Rights (ECHR), including Article 11 protecting freedom of association into domestic law through the Human Rights Act 1998. 2 Sidiropoulos and others v. Grèce, E.Ct.HR Application No. 57/1997/841/1047, (10/7/1998), par. 40. 3 Austria, Belgium, Cyprus, France, United Kingdom, Netherlands, Greece, Former Yugoslav Republic of Macedonia, Netherlands, Portugal, Slovenia and Switzerland. 4 Moreover, on October 10, 2007, the Committee of Ministers of the Council of Europe has adopted a Recommendation on the legal status of non-governmental organisations in Europe (CM/Rec(2007)14): “This is the ﬁ rst international legal instrument that targets the legislator, the national authorities and the NGOs themselves. It aims to recommend standards to shape legislation and practice vis-à-vis NGOs, as well as the conduct and activities of the NGOs themselves in a democratic society based on the rule of law.” (Please see: http://www.coe.int/t/e/legal_affairs/legal_co-operation/civil_society/Press%20release.asp#TopOfPage). However, Recommendations are not binding on member States. 5 Guide de la liberté associative dans le monde, 183 législations analysées, under the supervision of Michel Doucin, La Documentation Française, Paris, 2007, p. 576. 6 Ibid. p. 632 and 678. 7 Ibid. p. 622. 8 Ibid. p. 682. 9 Ibid p. 606. 10 Ibid. p. 692. 11 Ibid. p. 631. 12 Ibid. p. 586.

97 EUROPEAN UNION MEMBER STATES 98 19 18 17 16 15 14 13 9. 8. Restricting minorityrights 6. Impact of‘waronterror’ 7. associations. claim theyaremembers ofaminoritytouseanywordtheywish inthedenominationsbywhichtheywould liketoidentifythemse of March2006, theCommissionerforHumanRightsofCouncilEurope expressedconcernsaboutthefactthat “ toallowanyprivate groupsorassociationstouseassociationalnamesthatincludetheappellation Government ‘Turk’ or ‘Maced Dignity, UnionandIntegration-forBulgaria”. In its concluding observations concerningGreece, Initsconcludingobservations 25/04/2005, theUnitedNationsHumanRightsCommittee “ Sidiropoulosandothersv. Greece This studyonlyfocusesonEuropeancountriesmembersof theEuropeanUnion. The policedetentionforpersonssuspectedofterroristacts canlastupto28daysintheUnitedKingdom(Terrorism Act 2006, Sidiropoulos andothersv. Greece United MacedonianOrganisationIlinden-PIRINandothersv. Bulgaria Zhechev v. Bulgaria society. place withsignifi cant casestudiesoftheimpactfeltby civil particularly egregious legalrestrictions thathavebeenput in It isnotanexhaustivesurveybutcombinesanalysisof operation whilstthefi nal onelooksatfundingandtaxation. and dissolution,thethird addresses theirorganisationand of associations,thesecondexaminestheirsuspension fi rst sectionfocusesontheformationandincorporation Mediterraneancountries:the andEastern on theSouthern This studyadoptsthesameformatasthoseundertaken attitudes andbehaviour. countries) havetheirroots inlongstandingdiscriminatory prevention ofgayrightsmarches European insomeEastern behind somerestrictions are securitydriven,others(e.g.the these are national,religious orsexual.Whilstthemotives in therestrictions placedonminorityassociations,whether In addition,thelastfewyearshavealsowitnessedanincrease communications), terrorist suspects;psychologicalprofi ling, interception of privacy (e.g.extendingdetentionwithoutchargeortrialfor most conspicuouslyimpactedonindividuallibertyand countries, includinginEurope. Whilstsuchrestrictions have ranging restrictions onmanyhumanrightsacross numerous global fi ght againstterrorism hasresulted infrequent wide Since 11September2001(andevenbefore thisdate),the process. are reached are oftenfl awed lackingtransparency anddue as willbeseenbelow, theprocess bywhichsuchdecisions them topubliclydisclosetheirsources offunding.However, terrorist acts,frozen offunds,andthusactivities,orrequired organisations suspectedofsupportingand/orcarryingout terrorist acts,someStateshaveblacklistedindividualsand not -canbeusedbyindividualstoorganiseandcarryout Arguing thatassociations-whetheroffi cially created or assembly. of associationandrelated rightstofree expression and “(CommDH(2006)13 /29March2006par. 44). 14

, E.Ct.H.R.applicationNo57045/00(21June2007)concerningthe refusal toregistertheassociation “ 13 there hasalsobeenbreaches offreedom , supran.3. , supra n.3. , E.Ct.H.R. applicationNo59489/00(20October2005). 12. 11. 10. 1. Formationandincorporation minority withintheprovince. unity that ‘ of group « similar grounds occurred inBulgaria,where theregistration and suffi cient” humanrightscaselawrequiresinternational thatonly“relevant These restrictions haveoccurred despitethefactthat thereby threatening Greece’s territorialintegrity. the Greek identityofthecountry’s province ofMacedonia, incorporation onthegrounds thatitsmembersopposed Civilization (StegiMakedonikouPolitismou Europe. InGreece, thegroup ‘ particularly frequently, althoughnotexclusively, inSouthern have refused toregister somegroups. Suchcasesoccur territorial integritybyminoritymovements,someStates However, citingthreats tonationalsovereignty and/or of third parties. that ofitsmembersandmostlikelytoimpactontherights association acquire alegalpersonality, whichisdistinctfrom an association.Assoonasauthoritiesare informed,an simple information/notifi cation oftheexistencesuch is required. Instead,theregistration systemisbasedon principle meansinEUcountriesnosuchauthorisation authorisation from authoritiestoformanassociation,this South Mediterraneancountries,where agroup needsprior déclaratif of European associationsare basedona“ Generally, theformationandincorporation lawsgoverning a potentialbreach oftherighttofreedom ofassociation. in itstitlehasalsobeenconsidered toincrease therisk of a group’s nameincludeswords from aminoritylanguage In contrast,therefusal toregister anassociationwhoseonly national security border [...]doesnotseemtojeopardizeacountry’s integrityor with theprinciplesofdemocracy the legalandconstitutionalorderisnotinitselfincompatible refusal. Specifi cally, “ ’ inthattheywere aimedatdefendingtheMacedonian its statutes and programmes run contrary tothenation’sits statutesandprogrammesruncontrary ” (“notifi cation system”).Contrarytomostofthe OMO IlindenPIRIN 17 .” criteriashouldbeusedtojustifyregistration 18 Refusingregistration onthegrounds that notes with concern theapparent unwillingnessofthe notes withconcern campaigning infavourofachange onian it isnotpossibletodayinGreeceforthose who ’”(par. 20). InitsfollowupreportonGreece lves collectively, forinstance whenregistering Civil SocietyforBulgarianInterests, National 16 » wasdeniedforthereason Chapter11, section23). House oftheMacedonian ” andthe“‘ ) wasrefused opening’ ofa 15 Arefusal on principe 19

( o residenciaenEspaña lysées, any suchrequirementfollowingitscondemnationbytheEuropeanCourtofJustice on29June1999( be takentoallowtheunrestrictedexerciseofrightassociationbyallminorities Greece time totakeanyaction” (UnitedCommunistParty of Turkey v. Turkey case, the TBKP’s programmecouldhardlyhavebeenbeliedbyanypracticalactionittook, sinceitwasdissolvedimmediately af different fromtheonesitproclaims. To verifythatitdoesnot, thecontentofprogrammemustbecomparedwithparty’ 2004)par.February 105) 13. 15. 29 28 27 26 25 24 23 22 21 20 14. March 2005, CommDH(2005)8/9November2005par. 76) orleavetostayinSpain. a tradeunionandstrikingarelimitedtoforeigners witharesidencepermit matters fallingwithintheprovinceoflocalauthority, aswelltherighttojoinanyassociation” localassociationsoftheirownforpurposesmutualassistance,residents toform maintenanceandexpressionof theircultur tion withothers, andtojointradeunionsfortheprotectionoftheirinterests. includingtherighttoform Inparticular, th association’s aim, primary whichwasto “awaken andstrengthenthenationalconsciousnessofSilesians” (Gorzelikandothersv. by theassociationofitsstatusasconferredregistration. Itbynomeansamountedtoadenialofthedistinctiveethnican based solelyonthemention, inthememorandumofassociation, ofaspecifi c appellationfortheassociation. Itwasdesignedt Guide delalibertéassociative danslemonde, mentionedabove, Forexample, France bannedtheassociation “Tribu Ka” onachargeofincitement racial hatred(theassociationprohibited i “ ÁngelesLópezÁlvarez, « “Each Party undertakes, [...]toguaranteeforeignresidents, astoitsownnationals[...]the righttof onthesameterms InLithuania, thenationalityrequirementwasrepealed in2004(CM/Monitor(2005)1volIIfi nalrevF /11October2005par. 101); InhisfollowupreportonBulgariaof2006, theHuman RightsCommissioneroftheCouncilEuropefurtherrecommendedto CM/Inf/DH(2007)8, 7February2007. UnitedCommunistParty of Turkey v. Turkey, theE.CtH.R. arguesthat “Admittedly, itcannotberuledoutthataparty’s polit “ the aliensandimmigrationlegislationhasbeen criticisedinanumberofquartersonthegrounds, amongstothers, thattherig In theinstantcaserefusalwasnotacomprehensive, unconditionalonedirectedagainsttheculturalandpracticalobjectiv Todos alasleyesqueloregulanparalos españoles yquepodránejer losextranjerostendrán elderechodeasociaciónconforme association hasstartedfunctioning. of HumanRights,canonlybeknownbytheStateafteran than suppositionwhich,asnotedbytheEuropean Court Refusal alsohastobeplacedonconcrete evidencerather appropriate compensation. Court andeithertoregister theassociationand/orprovide to refuse toimplementthejudgmentofEuropean hascontinued 7 February2007)theBulgariangovernment However, despiterepeated requests (themostrecent being authorities toregister thegroup « the executionofjudgmentinrefusal oftheBulgarian conclusion oftheCommitteeMinisterswhenmonitoring participate inassociations do notgenerallyrestrict theabilityofforeigners toformand Finally, itshouldbenotedthat,althoughEuropean States case isnowbefore theSupreme CourtofCassation. Court rejected onceagainanapplicationfrom thegroup; the the qualifi cation ofnationalminorityislegitimate. aim istoprovide itsmemberswiththebenefi ts attachedto restitutio inintegrum(fullcompensation) consequences withtheaimtoguaranteeasmuchpossible measures toputanendtheviolationanderaseits to restore legality, including“ of theECHR,statemusttakeallnecessarymeasures When arefusal toregister results inaviolationofarticle11 of Foreigners inPublicLifeatLocalLevelof5February1992, the ConventionofCouncilEurope ontheParticipation p. 591, supra n.4) , E.Ct.H.R.applicationNo35151/05 (10October2007) .» (Leyorganica8/2000, 22December2000) Refl exiones acercadelaLeyOrgánica8/2000sobrederechosylibertadeslosextranjeros enEspañaysuintegraciónsocial 24 23 -inconformitywitharticle3of On23August,theSofi a City if thecasearises,individual 21

OMO IlindenPIRIN. .” 22 p. 622) Thiswasthe , applicationno. 133/1996/752/951, (30/1/1998)par. 58). Itwasconﬁ rmed recentlyin 20

” (CommDH(2006)6/29March2006par. 28) » 16. 2. Dissolutionandsuspension Europe’s CommissionerforHuman Rightsin2005. restriction hasbeenexpressly criticisedbytheCouncilof area ofWestern Thrace,andnotanationalTurkish minority). recognize thepresenceofareligiousMuslimminorityin treatiessignedinLausanne (whichonly with theinternational toGreekpublicorder,and contrary sinceitisincontradiction Turkish UnionofXanthionthebasisthat“ the Greek CourtofCassationdissolvedtheassociation thantheprotectionconcerns ofminorityrights:e.g., decisions apparently beingmore motivatedbynationalist such cases,thejustiﬁ cation isnot alwaysclearwithsome defend theirrightstothesolelegalforeigners. the lawdoesgrantrighttofree judicialassistanceto rights; forexample,thepursuitofaracistgoal. the associationactsintotalcontradictionoffundamental with nationalauthoritiesonlytendingtointervenewhen However, suchdissolutionprocedures are rare inEurope activities are viewedascontraveningrelevant regulatory laws. dissolutioncanbeenforcedexternal ifanassociation’s following adecisionofitsmembers.Atthesametime, Clearly, reasons anassociationcanbedissolvedforinternal granted aresident’s permitorleavetoremain. association islimitedtothoseforeigners whohavebeen integration’ of22December2000,therighttofreedom of rights andfreedoms offoreigners inSpainandtheirsocial Accordingconcern. toarticle8ofthe‘organiclawon ECTS No.144 “(Report oftheCommissionerforHuman RightsoftheCouncilEurope, Guide delalibertéassociativedanslemonde, 183 législationsana- e righttofreedomofassociationshallimplytheforeign 25 -thepracticeofSpaincontinuestocause reedom ofpeacefulassemblyandtofreedomassocia- ical programmemayconcealobjectivesandintentions d culturalidentityofSilesiansortoadisregardforthe s actionsandthepositionsitdefends. Inthepresent o counteractaparticular, albeitonlypotential, abuse Poland ter being formed andaccordinglydidnotevenhave ter beingformed al identityordefenseoftheirinterestsinrelationto hts ofassembly, association, demonstration, joining es thattheassociationwishedtopursue, butwere cer cuandoobtenganautorizacióndeestancia , E.Ct.H.R., applicationNo44158/98, (17 ts meetingtonon African people) in2006 authoritiesthat “ similarlyBelgiumnolongerimposes appropriate measures its aimisillegal 26 However, 29 Bekir-Ousta v. 28 Evenin 27 This 99

EUROPEAN UNION MEMBER STATES EUROPEAN UNION MEMBER STATES 100 contre leterrorisme, l’ONUaétabliune«listenoire»auxconfi ns dudroit Behrami etv. France andSaramativ. France, andNorway Germany (source : 36 35 34 33 32 31 30 18. and regional measures Impact of‘waronterror’: international 17. 38 37 19. to orinthecourseofsuchmissions, To dosowouldbetointerferewiththefulfi llment oftheUN’s keymissioninthe fi eld Convention couldnotbeinterpretedinamanner whichwouldsubjecttheactsandomissionsofContractingParties whichwereco threat clearlyidentifi ed bytheSecurityCouncilinaccordancewithCharterofUnited Nations interest inhavingacourtheartheircaseonitsmeritsisnotenoughtooutweightheessential publicinterestinthemainten responsible forruling, inlawand on thefacts, inactionsbroughtagainstindividualdecisionstakenbytheSanctionsCommitt Communities foundthat “ persons onthebasisthathehadsamenameasamansuspectedofterrorism. (Source: AP) . to 2006(resolution1718ontheDemocraticPeople’s RepublicofKorea). the PromotionandProtection ofHumanRightsandFundamental Freedomswhilecounteringterrorism A/61/267, para. 38). SyméonKaragiannis, As of15 August 2007, onlyninepersonshavebeentakenoffthelistin6years;includingtwoassociates of Youssef Nadawhos Inthecaseof Forexample, inJuly2007, asevenyearoldchildwassubjectedtothoroughcheckbeforetakingplaneinFloridaashisna Any statecansuggestaddinganindividualonthe blacklist. Ifnoneofthe15membersSecurityCouncilraiseanyobje As of1March2007, nolessthanelevensanctionscommitteeswereactive, whichwerecreatedbySecurityCouncilresolutions f Article 4, S/RES/1267(1999). Source: http://cm.greekhelsinki.gr “ The inclusiononthelist mustbesubjecttoacertainnumberofprocedural guarantees. Firstistherighttobeinformed. 2001, thisCommittee,knownasthe‘SanctionsCommittee’, ‘Turks. security (...)andraisesanon-existentminorityproblemof actions (...)gravelyendangersGreekpublicorderandnational foreign stateandspecifi cally Turkey. Theassociationwithits the promotionwithinGreekstateofinterestsa Turkish minoritythatwouldexistinGreeceandpursue remote Turkish originbutacurrentqualityasmembersof The referencetotheTurkish identitydoesnotrefl ect some established byparagraph6. controlled [...]bytheTaliban [...]asdesignatedbytheCommittee to “ Taliban, hadadoptedresolution 1267(1999)requiring allstates Council, inthelightoftakeoverAfghanistanby Even before 11September2001,theUnitedNationsSecurity an associationcannotfunctionproperly. activities ofassociationssinceitisclearthat,withoutfunds, counter terrorism lawshaveeffectively suspendedthe the assetsofassociationssuspectedterrorism, recent Even thoughoutrightsdissolutionmightberare, byfreezing particular, theSecurityCouncilhasadoptedResolution1373 human rights,theruleoflawandpluralistdemocracies.In as wellposingathreat toglobalsecurity, alsoundermines abusing freedom ofassociationonthebasisthatterrorism, adopted severalmeasures toprevent terrorist groups from Since 11September2001attacks,theUnitedNationshas whose fi nancial assetsshallbefrozen accordingly. (‘black’) listofpersonsandentitiessuspectedterrorism and composedofallSecurityCouncilmembers,drew upa UN Approves Appeals over TerrorismUN ApprovesAppeals Blacklist freeze fundsandotherfi nancial resources[...]ownedor ” 30 Yusuf et Foundation/CouncilAl BarakaatInternational andCommission in there isnojudicialremedyavailabletotheapplicant, theSecurityCouncilnothavingthoughtitadvisabletoestablishanin ReportofDickMarty, AS/Jur (2007)14, 19March2007, par. 60. ”’ 31 Subsequently, onMarch 8th , DavidCrawford, », Wall Street Le Monde (n°78166/01), 31May2007). 32

, 17août 2007). Journal

), T-306/01, of21September2005, theCourtofFirstInstanceEuropean 20. , 21September2006). his/her beingputonthelist. is neitherheard norinformedoftheevidencewhichledto to itand,eventhen,theindividualsubjectedsanctions possible ifallthemembersofSanctionsCommitteeagree Rapporteur onTerrorism andHumanRights. strong criticism,includingbytheUnitedNationsSpecial light ofthesefailings,theprocess hasbeenthesubjectof be easy”[NDTRunoffi cial translation] without knowingwhatyouhavebeenheldguiltyformustnot has commentedthissituation:“ Marty, MPattheCouncilofEurope, SyméonKaragiannis the normalerrors thatwillarise, organisations are placedontheblacklist’, cannot bedenied,theprocess bywhichindividualsand Whilst theneedtotacklefundingandsupportofterrorism terrorism whosefi nancial assetsshallbefrozen). of updatingthelistpersonsandentitiessuspected 1267 (amendeddifferent times)istheCommitteeincharge 11th, SanctionsCommittee,establishedbyresolution fi nancial assetsshallbefrozen (Infact,sinceSeptember the listofpersonsandentitiessuspectedterrorism whose the SanctionsCommitteewithsupervisingupdatingof individuals andgroups suspectedofterrorism andtasked fi ght againstterrorism, ordered Statestofreeze thefundsof (2001), whichsetsoutthegeneralframeworkforglobal challenged inacourtoflaw. such decisions,and,inanyevent,itsresolutions cannotbe Security Councildidnotprovide anyrightofappealagainst thirdly, theycannotbesubjecttojudicialchallengesincethe those whoare subjectedtothembeingheard, orevennotified; judicial bodies;secondly, thesanctionsare adoptedwithout are criminalinnature, are determinedbypoliticalratherthan weaknesses. Firstly, thesanctionsoffreezing assets,which ”. Similarly, theEuropeanCourtonHumanRightsrecentlyconfirmed that “ including theeffectiveconductofitsoperations ance of international peaceandsecurityinthefaceofa ance ofinternational ee. [...]Inthecircumstancesofthiscase, theapplicants’ ” (ReportofMartin Scheinin, SpecialRapporteuron vered byUNSCResolutionsandoccurredprior me wasonthe American listofdangerous ction within5days, sanctions areapplied 35 36 rom 1993(resolution751onSomalia) Removalformthelistisonly e caseisfamous(source: « Inarecent ReportofDick To demonstratealackofguilt 34 suffers from three major . 37 Unsurprisingly, inthe dependent international court dependent international 33 38 leavingaside

Pour lutter ” (ECHR, the European Union and other international agreements,European Unionandother international arrangements andconventionswhicharebindingupon MemberStates. conducted bytheirauthorities inrespectofanythepersons, groupsandentitieslistedinthe Annex, fullyexploit, uponr on EuropeanUnion, affordeachotherthewidestpossibleassistanceinpreventingandcombating terroristacts. To thatendthe person, totheformer is ofdirectandindividualconcern same conditions, instituteproceedingsagainstadecisionaddressedtothatpersonor a decisionwhich, althoughinthe than recommendationsandopinions, andofactstheEuropeanParliament intendedtoproducelegaleffectsvis-à-visthirdpar Position, whichdefi nes thelistofEuropeanandnon-Europeanterroristorganisations, canbeupdatedat anymomentbytheCoun tation andeffectivescrutinybothbythenationalparliamentsEuropeanParliament, and alsoevadingthejurisdictio States ontheonehand, andoneormorethirdcountries ontheother, shallnotbeaffectedbytheprovisionsofthis Treaty their obligationsunderthepresentChartershallprevail. 22. 21. 48 47 46 45 44 43 42 41 40 39 Resolution 1373(2001))butdoesnotcontainanyprovisiononimplementation. Article 4ofCommon Position2001/931/CFSP: “ Article 1paragraph 4oftheCouncil’s CommonPosition(2001/931/CFSP). “ The Council’s Decision2007/445/CEof28June 2007istheonecurrentlyinforce. (See Annex 2). The listcurrentlyinforceistheonecontainedCouncil’s CommonPosition2007/448/CFSPof28June2007(seeannex2). Parliament “ European The Article 2paragraph3oftheRegulation(EC)No2580/2001 isimplementedbytheCouncil’s communityDecision2001/927/ECof27 The Counciladoptedon27December2001athirdinstrument, theCommonPosition2001/930/CFSPon ‘the fi ght againstterrorism’ “ “ The rights and obligations arising from agreements concluded before 1 January 1958or,The rightsandobligationsarisingfromagreementsconcludedbefore1January foraccedingStates, before thedateof The CourtofJusticeshallreviewthelegalityactsadoptedjointlybyEuropeanParliament andtheCouncil, ofactst In theeventofaconfl ict betweentheobligationsofMembersUnitedNationsunderpresentCharterandtheirobl (see: paragraph24),thenamesonthesetwolistsdiffer. entities withaviewtocombatingterrorism.’ restrictive measures directed againstcertainpersonsand (EC) No2580/2001of27December2001on‘specifi c measures tocombatterrorism’ andtheCouncilRegulation CFSP of27December2001on‘theapplicationspecifi c of terrorism: TheCouncilCommonPosition2001/931/ procedures forfreezing thefundsofassociationssuspected must befrozen. Thislistisupdatedeverysixmonths. and entitiesinvolvedinterrorist activitiesandwhosefunds CFSP establishesinitsannexalistofpersons,groups associations. Firstly, theCommonPosition2001/931/ European instrumentscreate twodifferent ‘blacklists’of One problem withthesearrangementsisthattwo 103 oftheUnitedNationsCharter Union, togetherwithitsmembers,inaccordance witharticle However, despitethesefailingsandcriticism,theEuropean updated twiceayear. entities establish, reviewandamendthelistofpersons,groups 2580/2001 establishesanotherlist(‘ implement article2paragraph3oftheRegulation(EC)No In addition,theCouncil’s Decision2001/927/CEwhich February 2002. 27 December2001onmeasures tocounterterrorism” of7 the CouncilinitsResolution“onCouncil’s decisionof consulted ontheprocess, criticizedtheprocedure usedby be notedthattheEuropean Parliament,whichwasnot Treaty establishingtheEuropean Community, Union established,through two order toimplementresolution 1373(2001),theEuropean to implementdecisionsoftheSecurityCouncil.Hencein ’ whosefundsmustbefrozen). Since2001,thislistis 43 deplores thechoiceofalegalbasiswhichfallsunderthirdpillarfordefi nition ofthelistterroristorganisatio 45 Unsurprisingly, asisoutlinedbelow 41 legalinstruments,itsown 39 Member Statesshall, throughpoliceandjudicialcooperationincriminalmatterswithin theframeworkof Title VI ofthe Treaty ”. ”. andarticle307ofthe The Council,[...]shall 40 42 isobliged Itcould 44

23. 25. 24. European Community. (“the ECJ”),underarticle230oftheTreaty establishingthe before theCourtofJusticeEuropean Communities individual can bebrought againstthoseRegulationsof‘ the frameworkofCFSP. However, actionsforannulment judicial appealispossibleagainstCommonPositionstakenin according toarticle46oftheTreaty onEuropean Union,no The problems are furtherexacerbatedbythefactthat, blacklisted European associationscomeunderarticle4 Common Position2001/931/CFSPprecise, initsindex, included, althoughnottheinclusionitself.Indeed, be entitledtocontestthepossibleconsequencesofbeing terrorism sinceonlynon-European associationsappearto discriminate againstEuropean associationssuspectedof Moreover, suchlistsadoptedthrough aCommonPosition sanctions maybeincludedinthelist being relatedtoterrorismandagainstwhomithasordered identiﬁ ed bytheSecurityCouncilofUnitedNationsas condemnation forsuchdeeds.Persons,groupsandentities an actbasedonseriousandcredibleevidenceorclues, act, anattempttoperpetrate,participateinorfacilitatesuch the instigationofinvestigationsorprosecutionforaterrorist irrespectiveofwhetheritconcerns and entitiesconcerned, by acompetentauthorityinrespectofthepersons,groups relevant ﬁ le whichindicatesthatadecisionhasbeentaken drawn uponthebasisofpreciseinformationormaterialin the Annex to independentandimpartialjudicialscrutiny:“ political bodywithoutanyoftheevidencebeingsubject the more disturbinggiventhatithasbeenadoptedbya The impossibilityofcontestingsuchalistbecomesall paragraph 26below). of People’s MujahedinofIran ’ concern toindividualsandcommunityDecisions ’ concern [of CommonPosition2001/931/CFSP] equest, theirexistingpowersin accordancewithactsofthe ” . n oftheCourtJustice[and]regretsthatthisCommon form ofaregulationordecision addressedtoanother form ”. he Council, oftheCommissionandECB, other 46 ties [...]Anynaturalorlegalpersonmay, underthe y shall, with respecttoenquiriesandproceedings cil withoutanyconsultationofParliament igations under any other international agreement,igations underanyotherinternational Itwasonthisbasisthatthecase their accession, betweenoneormoreMember wastakenbefore theECJ(see .” December2001(seepar. 21) . Itcontainsalltheelementsof ns, therebyexcludingallconsul- 47 direct and The listin shallbe ” 48

101

EUROPEAN UNION MEMBER STATES EUROPEAN UNION MEMBER STATES 102 58 57 56 55 54 53 52 51 50 49 27. décembre 2005, portantsurles modesd’investigationdanslaluttecontre leterrorismeetlacriminalitégraveorganisée concludes thatthecontesteddecisionsmust beannulled andtheCourtitselfwasunabletorev werenotobserved procedures inwhichtherightsofdefence ofthepersonsconcerned and safeguardswerenotrespectedbythe Council initsadoptionofthecontesteddecisions. Reasonswerenotgivenforthosed the obligationtostatereasons, areinprinciplefullyapplicabletotheadoptionofaCommunity decisionfreezingfundspursu resides intheNetherlands, wasprotestingthefact thathissocialinsurancehadbeensuspendedandbankaccountfrozen. confi dential). which affectsthefreemovementofcapital, aCommunitymatter. 26. Terms used byDenisBosquetabouttheoutcome of thejudgementfi rst instance, « Annual Reportofthe Committeeof Vigilance intheFightagainst Terrorism (Committee T) –year 2006, p. 21. InthesetwoCases, theCourtnotesthat “ Mr. Sison, formerchairmanofthePhilippines’CommunistParty, wingNPA whichmilitary isontheEuropeanblacklistofassoci Since 29June2007, The Councilgives “ Itseemslikeanewprocedureiscurrentlyongoing(Seedocument(10826/1/07 REV1)oftheUECouncil21June2007, whichis Source: Itseemstobedifferentfornon-Europeanassociationssincetheycomeunderarticle 2and3oftheCommonPosition2001/931/C Jugement T-333/02 7June2004;confi 2007,rmed byECJ27February caseC-354/04P. Applications No6422/02andNo. 9916/02. of theirrighttoaneffective remedy. result isthatEuropean associationsappeartobedeprived of thisCommonPosition.However, inthecases the courseofaprocedureduringwhichrightparty a suffi cient statementofreasonsand thatitwasadoptedin the freezingofOMPI’s funds[byEU]doesnotcontain of Iran the fi rst timebytheECJin case ‘ violation ofthedefendants’rightswascondemnedfor On 13December2006,thislackoftransparency and Gestoras Pro-Aminstía without anyfurtherdiscussion. A-point ( the MemberStatesofEuropean Unionwhoadoptitas new listofnames,itisforwarded totheambassadorsof Council. Moreover, whenthe‘clearinghouse’establishesa and doesnotappearontheorganisationalchartofEU ‘clearing house’iscomposedofnationalintelligenceservices criticised foritssecrecy andlackoftransparency. in particulartheobscure ‘clearinghouse’body, hasbeen European Foreign Ministers.Thewholeprocedure and, called ‘theclearinghouse’before beingadoptedbythe The twoEuropean ‘blacklists’are draftedwithinabody cooperation, whichfallsoutsidecommunityissues. policeandjudicial their casebecausethematterconcerns 2004, thelatterdeclared itwasnotcompetenttodecideon totheECJ,buton7June two associationsthenturned action ispossibleforthembefore theECtHR.In2004, the meaningofArticle34ECHR the statusofvictimsaviolationConventionwithin situation complainedofdoesnotgivetheapplicantassociations the applicants not addanynewpowerswhichcouldbeexercisedagainst Common Position2001/931/CFSP. claims since“ European CourtofHumanRightsheldinadmissibletheir EU’s secretivecounter-terror grouptofacescrutiny ’ (T-228/02) whenitheldthat “ Agenda itemwithoutdiscussion [...] the applicantsaresubjectonlytoArticle4 Consequently, theCourtconsidersthat 49 - twoEuropean associations-the a statementofreasons[...]foreachpersonorentitysubjecttoanassetfreeze 53 certain fundamentalrightsandsafeguards, especiallytherightsofdefenceandrightto effectivejudicialprotection, [However, article4] 51

“ (PressRelease47/07, JudgementsoftheCourtFirstInstanceincases T-47/03 and T-327/03) .” Inotherwords, no the decisionordering ), i.e.automatically, People’s Mujahedin (EUobserver.com). Segi and 52 50 does The The 28. Impact of‘waronterror’: Nationalmeasures Analyse delapremière décisiondejusticerenduesurbasela loibelgedu27 perpetrating suchacts:“ relating tothepresumption ofinnocence. thereby contradictingfundamentalcriminallawprinciples one commentatorasamountingto‘ to eachpersonandentitiesblacklisted. respected itsdutytoinformbysendingaletterofnotifi cation 2007 ;theEuropean Unionclaimedthatithadthistimefully Common PositionandtheDecision)adoptedon28June of Iran legal decisionofDecember2006,the‘ theOMPI. concerns Accordingly thatdecisionmustbeannulledinsofarasit not inapositiontoreviewthelawfulnessofthatdecision. andthatitis toafairhearingwasnotobserved, concerned translation] any activityinpreparationofaterroristact”[NDTRUnoffi cial that thevocationofgrouphasnotbeenmaterialisedby or group] a terrorist group] basis thatitwassuffi cient fortheorganisation to‘ commit oreventhreatened tocommitaterrorist act,on the althoughithadnevercommitted,attemptedto government, against itsnamingasaterrorist organisationbythe of theassociation 2007 theBelgianCourtofCassationrejected theappeal of certainassociationsassupportingterrorism. On7June are adoptinganoverbroad approach tothedesignation There arethatsomenationalauthorities alsoconcerns Council oftheEuropeanUnion (see annex3). /Council oftheEuropeanUnion again condemnedintwofurthercases: the confi dential andinequitablenature oftheprocedure was ’ appeared onthetwonew‘blacklists’(both . of thePenalCodeisestablisheddespitefact 57 Suchananalysishasbeencondemnedby and 140 », p. 5. ant toregulation2580/2001. [Inthiscase]thoserights Groupe IslamiqueCombattantMarocain ”, doc. 11309/07). ” However, incompleteviolationofthe iew thelawfulnessofthosedecisions[...] The Court Violation ofarticles139 Violation ecisions, whichwereadoptedinthecontextof [participation interrorist activities . 56 FSP relatingtothefreezingoffunds, ations suspectedofterrorism, who Furthercasesare pending 55 andStichtingAl-Aqsa/ , asofrecently, consideredas assumed criminality 54 People’s Mujahedin On11July2007, Jose MariaSison [defi nition of aspire andalso ’ at ’, 58

the endofDecember2006. Saved SectorSaviourSect). prepare orinstigatesuchactsoffences. terrorism orConventionoffences; or(ii)isrecklessastowhethermembersofthepublicwillbedirectlyindirectlyencour causes ittobepublished, he(i)intendsmembersofthepublictobedirectlyorindirectlyencouragedotherwiseinducedby 30. 29. 67 66 65 64 63 62 61 60 decision oftheCourt of Appeal ofGand, which had sentencedBaharKimyongürtofi ve yearsimprisonment. when thepersonisawarethathis/herparticipation contributestocrimesbeingcommittedbyaterroristgroup one participateinanywaytoterroristactivities, beitthroughtheprovisionofdataormaterialmeanstoa terroristgroup, consideration forthenatureofitsdailyoccupations whichcouldbelegal. Indeedaperfectlylegal activitycanconstitutea close tothisorganisationasatranslatorand attaché in anotherState. BaharKimyongürclaimssympathytowardsDHKP-Cwithoutbeing amemberofit(accordingtohim, hesimply “ (DHKP/C), anassociationwhichappearsontheEuropeanUnion’s ‘blacklist’ andwhich, althoughitisengagedinarmedstruggled the associationproscribedbutattimeofwritingitremainsalawfulentity. September 2001, consideringthatitwasanIslamic movementseekingthedestructionofIsrael. PoliticiansintheUnitedKingdo ago withmembersthroughouttheMuslimworld, theorganisationseekstoestablishanIslamicsocietyinMiddleEast. German as appliedbysection9ofthat Act. appeal onaquestionoflawinconnectionwithproceedingsbroughtbeforetheCommission undertheHumanRights Act 1998, byvi A partytothatappealmaybringafurthertheCourtof oftheCommis Appeal onaquestionoflawwiththepermission person affectedbytheirproscriptioncanthenappealtotheProscribedOrganisations Appeal Commission(POAC), setupunderse the list. ofStateforde-proscription. ProscribedorganisationscanatanytimemakeanapplicationtotheSecretary Shoulda 59 Sidiropoulosandothers v. Greecesupran.3, par. 40. A caseinpointroseafterBaharKimyongürwasaccusedof beingthechiefofaterroristandcriminalorganisation The associationGreenpeaceBelgiumiscurrently subjecttoa Amnesty Internationalreport, AI Index: IOR61/013/2005, “ CourdeCassation(chambrecriminelle), Amaya Recarte, 08/07/2004. IntheUnitedKingdomandDenmark, controversy hassurroundedtheproposedprohibitionoforganisation “ Two oftheassociationsprohibitedunder « In UnitedKingdom, theproscribedorganisationoranypersonaffectedbyorganisation’s proscriptionmayapplytotheSecre A personcommitsanoffenceif: (a)hepublishesastatementtowhichthissectionappliesorcausesanotherpublishsuch consciously encouragingterrorism. incitement toshowthatanindividualororganisationis act butwhoinciteit.However, itisnotnecessarytoprove not justcommit,participatein,prepare orinstigateaterrorist ‘blacklist’ ofterrorist individualsandentities,personswho of law. a ‘blacklist’issimplyincoherent andcontrarytotherule In somecasestheinclusionofaparticularassociationon British legislation. Such anassessmentcouldequallybeappliedtorecent of theliststhemselves only theconsistencyofstates’practicesbutalsolegitimacy require prosecution.Thisdiscrepancycallsintoquestionnot consider theiractivitiestoamountterroristoffencesthat a decisionrequiresunanimity),inpracticeFrancedoesnot must haveagreedtotheinclusionofSegionlist(assuch conclude that:“ European to arrest warrant.ThisledAmnestyInternational to theSpanishjudicialauthorities,aswasrequired bya ‘blacklist’ asitisconsidered theyouthwingofBatasuna) association Segi(anappearingontheEuropean refused toextraditeAmayaRecarte,spokespersonforthe might be! their statementscanbereceived, whatevertheirintention the Act,personsare responsible forthemannerinwhich their inclusiononthe‘blacklist’. have aspecialmechanismforassociationstoappealagainst 62 On8July2004,theFrench CourtofCassation 60 Onthepositiveside,United-Kingdomdoes It wouldseemthereforethat,whileFrance The Terrorism Act2006 ” ”. 64 » (Part1- 61 Terrorism2000 Act ”), buttheBelgianCourtof Appeal ofGandgavehimthe qualityof “ Terrorism2006 Act 59 Instead,according to includesinthe Counter-terrorism andcriminallawintheEU complaint for ‘criminal conspiracy’forhavingdemonstrated (peac , areaccusedof ‘incitement toterrorism’, asprovidedforbythe ). 63 33. 3. Organisation andoperation 32. 31. appreciation Rights whenitheldthat” been interpreted narrowly bytheEuropean CourtofHuman rights andfreedomsofothers for theprotectionofhealthormorals, security orpublicsafety, forthepreventionofdisorderorcrime, inademocraticsocietytheinterestsofnational [...] necessary to limitations,provided thattheyare “ freedom ofassociationisnotabsolutebutcanbesubjected According toarticle11(2)oftheECHR,exercise of of lawinEurope canbesubverted. andshowhoweasilytherule legitimate causesforconcern and thecriminalisationofoppositionmovementsare and transparency. Boththe‘ threat frequently combinedwithanabsenceofdueprocess between themeasures takenandtheactualorperceived examples, there isaclearissueofthelackproportionality In lightofthesedifferent (butbynomeansexhaustive) penalised becauseoftheiractivities. since suspicionsare automaticallyraisedthattheyare being behalf oftherightsothers in relation tosomeorganisations,e.g.thoseworkingon terrorism haveastrong basisinlawisparticularlysignifi cant criminal orcivil-takenagainstanassociationsuspectedof Thus, theobligationtoensure thatanymeasures -whether ”. On19 April 2007, theBelgianCourtofCassation quashedthe ”, p.16. ” inapplyingarticle11(2). Hizb ut-Tahrir, terrorist crime, outsuchactivity particularlywhenincarrying orbygivinganysourceoffundingtoterrorist activity, aged orotherwiseinducedbythestatementtocommit, the Revolutionary People’sthe Revolutionary Liberation Army/Front/Party n applicationbeunsuccessful, theorganisationorany thestatementtocommit, prepareorinstigateactsof head ofaterroristandcriminalorganisation without sion ortheCourtof Appeal. There mayalsobean ction 5andschedule3ofthe Terrorism Act 2000. statement; andb)atthetimehepublishesitor States haveonlyalimitedmarginof aradicalassociationcreatedover50years rtue ofsection6(1)the Terrorism Act 2000 tary ofStatetoremovetheorganisationfrom tary in Turkey, hasneverresortedtoviolence m haveattemptedseveraltimesto ”. Thisqualifyingprovision has 65 assumed criminality oroppositionmovements efully) againstElectrabelfacilitiesat y dissolvedtheassociationafter11 collaborated to the information officollaborated totheinformation ce Terrorism Act 2006(AlGurabaaand 67 prescribed bylawand ’ principle 66 103

EUROPEAN UNION MEMBER STATES EUROPEAN UNION MEMBER STATES 104 specifi cally includingamongthisgrouprepresentativesofGreekHelsinkiMonitor. theallegedforcedexpulsionofRomafamiliesin theMakrigianniareao of Romapeoplewhohadhelpedtheminacase concerning tions that: “ sociation orofexpression, andto jointradeunionswithothersfortheprotectionof toform includingtherightofeveryone « 35. 75 74 73 72 71 70 69 68 36. 34. Impact of‘waronterror’ immaterial whethertheactsofterrorisminquestionarespecifi c actsofterrorismorgenerally.” Section1 so; (d)conductwhichgivessupportorassistanceto individualswhoareknownorbelievedtobeinvolvedinterrorism-related instigation ofsuchacts, orwhichisintendedtodo so; (c)conductwhichgivesencouragementtothecommission, preparationo persons generally of thepublicfromariskterrorism[...] Those obligationsmay include, inparticular[...]arestrictiononhisassociatio of association affi rms alreadyinitspreamble(aswellasarticle12)thattheConvention “ Nothing inthisFramework Decisionmaybeinterpretedasbeingintendedtoreduceorrestrictfundamentalrightsfreedomssu Inhisreportof5June2007, FormsofRacism, theSpecialRapporteuronContemporary RacialDiscrimination, XenophobiaandIn Case Seearticle1, paragraph 4: “ Forinstance, theConventionofCouncilEuropeforPrevention Terrorism of16May2005, STCEno. 196, whichente Handyside v. UnitedKingdom Ouranio Toxo v. Greece, Zana v. Turquie, Section 1par. 9Prevention Terrorism Act 2005 “(a) thecommission, preparationor instigationofactsterrorism; (b)condu effectively. the abilityofseveralcivilsocietyorganisationstooperate freedom ofassociationwhichhasimpactedsignifi cantly on the ‘waronterror’ tointroduce anumberofrestrictions on guarantee freedom ofassociation, instrumentsrelating tocounter-terrorismof international Despite thisstrictapproach, andthefactthatanumber was found,sincethisnotraisedbythevictims,itis communication andassociation. only aperson’s libertyandfreedom ofmovementbutalso which caneffectively amounttohousearrest, infringenot terrorism, whennecessaryforpublicsafety. Thesemeasures individual suspectedoftakingpartinactivitieslinkedwith the HomeSecretary toissuecontrol orders againstany In theUK, measures. had declared voidandnullmanyofthenon-derogatory of Appealconfi rmed thedecisionofHighCourtwhich procedure. On1August2006,theEnglishandWelsh Court and non-derogatory measures -eachwithadifferent for twotypesofcontrol orders -derogatory measures a possiblederogation. Consequently, thelawprovides the righttopersonallibertyandsecuritythereby requiring potentially incompatiblewitharticle5oftheECHRasregards The lawacknowledgesthatsomeoftherestrictions are Such adefi nition isoverlybroad, vagueandsubjective. only suspectedofcommittingactsorintendingtodoso. include theprovision ofassistancetoindividualswhoare concrete actionsbytheindividualthemselves,butcanalso activities, asdefi ned undertheAct,neednotbebasedon all themoregiventhatparticipationinterrorist concerning Secretary ofStateforHomeDepartmentvsJJ;Secretary KK; GG; HH; NN; &LL the Headof Appeals Prosecutor’s Offi thatall Romawerecriminalsandannouncedthat ce statedduringaradiointerview “pe .” Similarly, theEUreferencetext, theCouncilFrameworkDecisionof13June2002oncombating terrorism(2002/475/JHA), spec ”. E,Ct.H.R., Application 18954/91(25 November1997), par. 55. 71 Althoughnobreach offreedom ofassociation Prevention ofTerrorism Act2005 E.Ct.H.R. Application No 74989/01(20October2005)par. 40. 19761EHRR737. In this Act “control order” meansanorderagainstindividualthatimposesobligationsonhimforpurposesconnectedwithpr 68 69 manystateshaveused Suchrestrictions are empowers ,No.2006. T1/2006/9502,1August ” (A/HRC/4/19/Add.1, p. 18). 70 is notintendedtoaffectestablishedprinciplesrelatingfreedomofexpressionand 38. 37. Restricting minorityrights discussion ofallpoliticalideas unavoidable consequencesofpluralism,thatistosaythefree provoke tensions.Theemergenceoftensionsisonethe constitute athreatto“democraticsociety”,eventhoughitmay and developmentofaminority’s culturecannotbesaidto consciousness ofbelongingtoaminorityandthepreservation of freedom ofassociationstatingthat“ the European CourtofHumanRightsfoundaviolation the defenseofMacedonianminoritylivinginGreece, actions -ofanassociationwhosedeclared aimsincluded - themayorofFlorinahasreportedly participatedtothose physical violenceaswelldestructionoftheheadquarters protect itselfagainsttheactivitiesofterroristorganisations of expressionandademocraticsociety’s legitimaterightto struck betweentheindividual’s fundamentalrighttofreedom appreciation, ascertainwhetherafairbalancehasbeen to thecircumstancesofeachcaseandaState’s marginof respect ofthefi ght againstterrorism, “ held thatcourts,inassessinganylimitationsonarticle11 the testofEuropean CourtonHumanRightswhenit doubtful whetherthecontrol order restrictions wouldmeet democratic society freedom ofexpression (an“ The ECtHRhasalsoruledthatminorities’righttoexercise state authorities. limitations, includingonsomeoccasionsharassment,by national ones,havealsobeensubjecttodisproportionate Associations forthedefenceofminorities,inparticular democratic society. whether thelimitationsmeetanswered apressing needina requiring a‘ test ofnecessity n orcommunicationswithspecifi ed personsorwithother 73 his orherinterestsandtherelatedrighttodemonstrate. par. 9Prevention Terrorism Act 2005. Inthecase ’’ 75 activity; andforthepurposesofthissubsectionitis r instigationofsuchacts, orwhichisintended todo ch astherighttostrike, freedomofassembly, ofas- according totheCourt),corollary ct whichfacilitatesthecommission, preparation or f Patras would be “called ontotakethestand”, ’ tobeundertakenascertain ” 74 rpetrators, instigatorsandaccomplices”

essential foundationofa tolerance Mr. DoudouDiène, men- Ouranio Toxo vs red intoforceon1June2007, must, withdueregard ifi es initspreamble mention ofthe otecting members Greece, ” 72 ». information gathering and d) effective mechanisms for international co-operation’. gatheringandd)effective mechanismsforinternational information that ‘ GeneralonHumanRightsDefenders,by theSpecialRepresentativeofUNSecretary 22/3/2006, E/CN.4/2006/95/Add.1, p. 188. be interpretedaslimitationonfreedomofmediaandexpression(OSCEdocument, HDIM.NGO/135/07, 26September2007). associative danslemonde, mentionedabove transactions totheUIC. Inaddition, NPOsaresubjecttothegeneralobligation totransferfundsthroughauthorizedfi nancial of donationsaswelltopossibleinconsistencies betweentransactionsandthesubjectiveprofi le oftheclient. Italsoreca regarding nonprofi t organizationsinJuly2003which requireallfi topayspecialattentionthequali nancial intermediaries 41. 4. Fundingandtaxation 39. 83 82 81 80 79 78 77 76 Commission. to theobligationdeclare cross-bordertransfers 40. In2006, forinstance, FATF washappytosay The Interpretative NotetotheSpecialRecommendation(30May2007)statesthatinorder topreventmisuseofNPOsbyterroris Austria, Belgium, Denmark, Finland, France, Germany, Greece, Ireland, Italy, Netherlands, Luxembourg, Portugal, Spain, Sweden, Seeinparticularthefollow-upreportofCommissionerforHumanRights CouncilofEurope(CommDH(2007)13/20June ECHR, InGreece, inJuly2007, anewbroadcastinglawhasissued InSlovakia, law300/2005 ontheoffenceofdefamationenteredintoforce Stankov andtheUnitedMacedonianOrganisationIlindenv. Bulgaria monitoring ofassociations’activitiesrelate totheirfi nancial In Europe -asinotherregions -thestrictestcontrols and ceremonies, applicant associationatthesametimeandplaceasoffi cial holding ofcommemorativemeetingsorganisedbythe Ilinden case of association-maybesubjectedtorestrictions. Ina Besides, freedom ofassembly-othercorollary offreedom defi ned limitationswhetherlegal of freedom ofassociation,mustalsobesubjecttostrictly subject toharassmentandintimidation. rights bodiesgaymarches havecontinuedtobe this positiverulingandothercriticismbyauthoritativehuman holding unpopularviewsorbelongingtominorities. and assembly[...]isofparticularimportanceforpersons “ these paradesposedathreat topublicsecuritystatedthat and inNovember2005Poznanonthegrounds that homosexual rightsassociationsinJune2005Warsaw Poland followingthebanningoftwo‘EqualityMarches’ by the ECtHR,infi nding aviolationofarticle11ECHR by Europeanin anumberofEastern countries.Forexample, subjected tobreaches oftheirrighttofreedom ofassembly Furthermore, sexualminoritieshavebeenparticularly other lawfulmeans. through theexerciseofrightassemblyaswellby means mustbeaffordedaproperopportunityofexpression existing orderandwhoserealisationisadvocatedbypeaceful based ontheruleoflaw, politicalideaswhichchallengethe justify aprohibitionofitsassemblies[...]Indemocraticsociety constitutional andterritorialchanges-cannotautomatically part ofthecountry’s -thusdemandingfundamental territory of personscallsforautonomyorevenrequestssecession involves a genuineandeffectiverespectforfreedomofassociation Baczkowski andothersv. Poland ’ nolessthanfourelements “ , inrelation totheprohibition byauthoritiesofthe Stankov andtheUnitedMacedonianOrganisation 78 the ECtHRheldthat:“ ” , applicationNo 1543/06, 3May2007, par. 64. , p. 686). a) Outreachtothe 76 .” (FATF, mutualevaluationprogramme, reportofItaly, 2006, p. 92). orpractical. that SpecialRecommendation VIII is ‘fully respected’inItaly, where “ the factthatagroup 80

[NPO] that speakinglanguageinradiobroadcastingshalldominantlyandp 77 , E.Ct.H.R., Applications No29221/95and29225/95(2October2001), par. 97.

sector ” 79 Despite [on theissueoffi nancing ofterrorism] on 1 January 2006.on 1January The offenceispunishablebyapr 43. 42. Controls level attheinternational for aCodeofConductNPOstoenhanceTransparency November 2005,whichincludesinitsannex‘aFramework greater transparencyofthenon-profi adoptedon29 t sector’ Financing throughenhancednationallevelcoordinationand Communication ‘ resources. AnexampleistheEuropean Commission’s tools tobaraccessterrorists from anassociation’s financial In additiontoFATF, theEuropean Unionhasalsodeveloped their fi nancial probity. solely onthebasisoftheiraimsandactivitiesasopposedto should notbeusedtounfairlypenalisesomeassociations operations. Whilstthisistobeexpectedandnecessaryit body, ofwhichseveralEuropean Statesare members Financial ActionTask Force (whichisaintergovernmental the recruitment ofterrorists orsupporttheiractivities,the and distributefunds,secure logisticalsupport,encourage and terrorist organisationsuseassociationstocollect activities. However, inaddition,onthegrounds thatterrorists of individuals,groups andentitiesinvolvedinterrorist adopted measures tofreeze thefundsandfi nancial assets As outlinedabove(seesection2),European Stateshave (NPOs), adoptedin1990,revised in1996and2003. Special RecommendationVIIIonnon-profi t organisations many recommendations todateisofparticularrelevance: money launderingandterrorist fi nancing. OneofFATF’s policiesaimingatcombating national andinternational independent oftheOECD)hasdevelopedtoolstopromote (“notifi cation system”)witha“ be useasapretext tosubstitutethe“ available tocompetentauthorities should belicensedorregistered.Thisinformation Special Recommendation(30May2007)statesthat” Among otherscomments,theInterpretative Notetothe member statesare meetingtheircommitments. FATF hasamutualevaluation Programme toassesshow b) supervision ormonitoring, b)supervision c) effectiveinvestigationand ty ofassociates, thebenefi ofdestination ciaries andcountry The PreventionandFightagainstTerrorist intermediaries forall transfers of intermediaries lls theobligationtoimmediatelydeclareall suspicious The BankofItaliahasissuedoperatingguidelines prior authorization ts, theonly ‘ referentially beinGreek;whichcan UnitedKingdomandtheEuropean ”. Thisarticleshouldnot ison sentence( 2007, par. 51s.)andthe report effective principe déclaratif € 12,500 andmore Guide delaliberté ’ approachisone ” approach. 83

81 NPOs and 82 ”

105

EUROPEAN UNION MEMBER STATES EUROPEAN UNION MEMBER STATES 106 person whoexecuteorpreparetoone oftheactionlistedinarticle114[whichdefi nes terrorism] ispunishtoimpriso 90 89 88 87 86 85 84 45. Controls atthenationallevel 44. of the AEDH (15September2005). StatementbyDominique de Villepin, Former French PrimeMinister, 20March 2005. This wasreiteratedinnoteNo NOR/INT/A/04/00089/CoftheInterior Ministry, 19July2004. Pleasesee: http://www.djoef.dk/online/?MIval=view_artikel&&action_ID=3&ID=1708 (OnlyinDanish). : “ 114 A Article Article 3 oforder66-38813June1966. Ontheadoptionofcodeconduct, oftheSwedishsection theInternationalCommissionofJurists seetheobservations COM/2005/0620fi nal. decisions. account theneedtorespect humanrightswhenmakingits an explanatoryreport which obliges thejudiciarytotakeinto be notedthattheDanishLawoncounter-terrorism includes Financing andotherTypes ofCriminalAbuse. and AccountabilityintheNon-profi t SectortoPreventTerrorist Minister. Interior Ministeruponrecommendation from theForeign or congregations require anorder ofauthorisationfrom the made toaforeign entityorStatebyassociations,foundations to increased surveillance.InFrance,donationsorlegacies Associations wishingtosendfundsabroad are subjected currently activeintheEuropean Union. to averysmallpercentage ofthethree millionassociations fi nancing ofterrorism through associationsisonlyrelevant for politicalreasons. Moreover, thewholedebateon not beusedtodisproportionately penaliseassociations oversight shouldbetransparent, fairandobjective and justifi such ed intermsofcivilsocietygoodgovernance related totheirfinancial operationsisperfectlyunderstandable Whilst controls andmonitoringofassociations’activities imprisonment with offences potentiallypunishablewithupto6years was chargedunderarticle114BofDanishCriminalcode, and PLFP-twoassociationsontheEuropean blacklists- the incomefrom sellingT-shirts totheassociationsFARC September 19th,thefi rm“FightersandLovers”whichsends association. However, thecaseiscurrently onappeal.On purposes. On26March 2007,acourtfoundinfavourofthe and theWorld AssemblyofMuslimyouth that themoneytransferred tothe The associationconstantlydeniedthoseallegations,claiming organisation ontheEuropean ‘blacklist’ofterrorist entities. accused ofproviding fundstoHamas,thePalestinian association isparticularlysignifi cant. for fi rst quarter2008)toensure protection forfreedom of European Commissionforesees ameetingofexperts codes ofconductwillbedraftedandimplemented(the bodies authorities ortoself-regulatory be dedicatedtoasinglepublicbodyorentrustedexisting sector andsuggeststhat‘ member Statestocarryoutoversightofthenon-profi t 86 InDenmark,theassociationAl-Aqsawasrecently 88 the person, orgroupofperson, who, directly, orindirectly, provideaneconomicalsupportortransportcollectfunds ma

87 Thecasehasyettobeheard but,itshould [t]he oversightrolecouldeither Islamic charitableSociety 85 ’. Howtheproposed wasforhumanitarian ’ 84 Italsoinvites 47. 46. 1976 1EHRR737). tolerance andbroadmindedness”(Handysidev. UnitedKingdom rights. Indeed,there isnodemocratic societywithout“ of thefreedom ofassociation ofgroups whichdefendminority Similarly, itisfundamentalforStatestofullyrespect theenjoyment movements. otherwise itwillmerely create abreeding ground fornewradical do sobyrespecting oftheRuleLawandHumanRights, movements. IfEurope really wantstodefeatterrorism, itmust fi ght againstterrorism asanexcusetocriminaliseopposition It isabsolutelyessentialforStatestorefrain from using the thecourtsandcivilsociety.governments, political anddemographictrends requiring extravigilance from that itissusceptibletoincreasing pressures from recent freedom ofassociationinEurope, thisshortsurveydemonstrates Despite therelatively highlevelofprotection andenjoymentof Conclusion credibility andultimatelytheirlegitimacy. unnecessarily underminethepublicperception oftheir accountable theymustneitherbediscriminatorynor Whatever measures thatare putinplacetoholdassociations approval bythegovernment. of theassociation] the foundation] executive boardmentionedinarticle13 foundation’s statutesproviding that“ control bytheauthorities,asrefl ected inarticle16ofthe Yet, despitethis,thefoundationhasbeensubjectedtoclose des DépôtsetConsignations) are transferredtotheDepositandConsignmentOffi ce (Caisse countries whichsupporttheFrenchmodelandwhosedeposits the congregationaswellnationalenterprisesandforeign supplied inabalancedanddiversemannerbymembersof advice from theauthorities,afoundation“ Centre françaispourleCulteMusulmancreated exclusive aimtheexercise ofareligious cult. donations orlegacies,culturalassociationsmusthaveas of Church andStatespecifythat,inorder tobenefi t from in France.Article19ofthelaw1905onseparation groups havebeensubjectedtoparticularlyclosescrutiny The accountsofassociationscloselylinkedtoreligious and 14 of thepresentstatutesareonlyvalidafter nment upto10years [ontheamendmentstostatutes ” ” (25 August 2005)ortheobservations [NDTR unoffi cial translation] ke availablefundstooneofthe ”. the proceedingsof [ontheresources of 89 with acapital In2005,the , following pluralism, 90

RECOMMENDATIONS 1 • • • • - TheGovernmentsofEuropeanUnionmemberstates: • • • - TheUnitedNationsandEuropeanUnionbodies: WE CALLUPON:

ECRI generalpolicyrecommendation on ‘Combating Racism whileFighting Terrorism, ECRI(2004)26, 17March2004. decision fullyandwithoutdelay, including,ifrequired,byimmediatelyallowingregistrationoftheassociationconcerned. In thecaseofafi nding of aviolationofarticle11theECHRbyEuropeanCourtHumanRights,toimplement in aterroristact. fundamental humanrights,aswelltoavoidaffectingnon-terroristgroupsorpersonswhohavenotdirectlyparticipated could infringe,directlyorindirectly, onassociations’activities,inordertofullyrespecttheprincipleofrulelawand To defi ne clearly, preciselyandasnarrowlypossible the scopeofapplicationanycounter-terrorism measureswhich and ProtectionofHumanRightsFundamentalFreedomswhilecounteringterrorism,A/61/267,p.7). limiting theserightsprovidedforinICCPRaresuffi cient tofi ght terrorismeffectively. To not“ levels human rightsandfundamentalfreedomsatthenationalinternational “ 1: To effectivelyimplementandrespecttheUnitedNationsDeclarationonHumanRightsDefenders,inparticulararticle of HumanRightsandFundamentalFreedomswhilecounteringterrorism(A/61/267,p.22). against terrorism,inaccordancewiththerecommendationsofUNSpecialRapporteuronPromotionandProtection To adoptageneralcommentontherightstofreedomofassociationandpeacefulassemblyinframeworkfi ght parties; inclusioninthelistshouldbesubjecttoeffectivelegalremedy. a listmustbedecidedandupdatedbymeansofindependentimpartialjudicialscrutinyafterduehearingthe To amendtheprocedureofinclusionaterroristentityon‘blacklist’organisationssuspectedterrorism;such of association,expression,religionandmovement nationality, waythe nationalorethnicorigin;[...]particularattention[mustbepaid]toguaranteeinanondiscriminatory discriminate againstpersonsorgroupsofpersons,notablyongroundsactualsupposed“race”,colour, language,religion, regulations adoptedinconnectionwiththefi ght againstterrorism[shouldbe]implemented[...]inamannerthatdoesnot To ensuretheimplementationofECRIRecommendationno.8:“ Everyone hastheright,individuallyandinassociationwithothers,topromotestriveforprotectionrealizatio Everyone resort toderogationmeasureswithrespecttherightsfreedomofassemblyandassociation[...] ”. 1

Legislation andregulations,includinglegislation ”. ” (UNSpecialRapporteuronthePromotion freedoms n of

107

EUROPEAN UNION MEMBER STATES 90 000

80 000 Number of associations* 70 000 Algeria ...... 50 000 60 000 Egypt ...... 17 000 Israel ...... 34 000 50 000 Jordan ...... 1 006 Lebanon ...... 5 000 40 000 Lybia Morocco ...... 8 000 30 000 Palestinian territories ...... 1 300 Syria ...... 600 20 000 Tunisia ...... 8 000 Turkey ...... 77 000 10 000

n Egypt Israel Lybia Syria Algeria Jorda Tunisia Turkey Lebanon Morocco territories Palestinian 7 Number of associations per 1 000 inhabitants*

5 Algeria ...... 1,5 Egypt ...... 0,2 4 Israel ...... 4 Jordan ...... 0,2 Lebanon ...... 1,3 3 Lybia Morocco ...... 2,4 Palestinian territories ...... 0,4 2 Syria ...... 0,03 Tunisia ...... 0,8 1 Turkey ...... 1 Europe ...... 6 0

Egypt Israel Lybia Syria Algeria Jordan Tunisia Turkey Europe Lebanon Moroccoalestinianterritories P Number of registered associations within EU member states*

900000 Germany 540 000 Austria 107 000 800000 Belgium 100 000 Bulgaria 10 000 Cyprus 2 000 700000 Denmark 101 000 Spain 160 000 600000 Estonia 22 350 Finland 120 000 France 800 000 500000 Greece Hungary 49 000 400000 Ireland Italy Latvia 6 130 300000 Lithuania 14 000 Luxembourg 200000 Malta 200 Netherlands 9 000 Poland 45 000 100000 Portugal Czech Republic 50 000 0 Romania 20 000 United Kingdom 500 000 ly via Slovakia 25 000 Ita uania Malta lands Spain France Ireland Lat Slovenia 20 470 Austria Bulgaria Cyprus Estonia Finland Greece Poland Sweden Germany Belgium Denmark Hungary Lith PortugalRepublicRomania SlovakiaSlovenia Sweden 200 000 Luxembourg Nether ch Cze

The United Kingdom * : Datas from «guide de la liberté associative dans le monde, 183 législations analysées», sous la direction de Michel DOUCIN, La documentation française, Paris, 2007.

ICCPR ICESCR CERD CEDAW CAT MWC STATUS OF RATIFICATIONS OF THE PRINCIPAL INTERNATIONAL HUMAN RIGHTS TREATIES Algeria 12/12/89 2/12/89 15/03/72 21/06/96 11/10/89 1/08/2005 by the 11 countries from East and South Mediterranean

Egypt 14/04/82 14/04/82 4/01/69 18/10/81 26/06/87 1/07/2003 CCPR: The International Covenant on Civil and Political Rights Israel 3/01/92 3/01/92 02/02/79 2/11/91 2/11/91 - CESCR: The International Covenant on Economic, Social and Cultural Rights Jordan 23/03/76 3/01/76 29/06/74 31/07/92 13/12/91 - CERD : The International Convention on the Elimination of All Forms of Racial Discrimination Lebanon 23/03/76 3/01/76 12/12/71 16/05/97 4/11/2000 - CEDAW: The Convention on the Elimination of All Forms of Discrimination against Women Libya 23/03/76 3/01/76 4/01/69 15/06/89 15/06/89 1/10/2004 CAT: The Convention against Torture and Other Cruel, Inhuman Morocco 3/08/79 3/08/79 17/01/71 21/07/93 21/07/93 1/07/2003 or Degrading Treatment or Punishment MWC: The International Convention on the Protection of the Syria 23/03/76 3/01/76 21/05/69 27/04/2003 18/09/2004 1/10/2005 Rights of All Migrant Workers and Members of Their Families Tunisia 23/03/76 3/01/76 4/01/69 20/10/85 23/10/88 -

Turkey 23/12/2003 23/12/2003 16/10/2002 19/01/86 1/09/88 1/01/2005

108 Countries Presence of independant Prior Dissolution Interference Acces to foreign funds Others associations authorisation elements

Libya Syria Egypt Algeria Jordan Palestinian Territories Tunisia Israel Lebanon Turkey Morocco

Introduction This very general criterion can be used to pinpoint those countries which prevent the emergence of an independent civil society through various The objective of this illustrative table is to describe in a simple and rather basic repressive and coercive measures. However, it cannot be used by itself to manner, on the basis of information presented in the country report, the main distinguish between countries with a dynamic civil society, subject to a low characteristics of the effective exercise of freedom of association in those level of constraints, from those in which independent associations are few, countries considered in the report 1. weak and facing multiple obstacles and constraints and fi nally from those in The report on Freedom of association in the Euro-Mediterranean region a middle-ground situation. calls for regular updates. The current table provides a basis to facilitate the development of a set of detailed and relevant indicators tailored to the • Authorisation: Do associations wishing to establish themselves need prior region, through regular updates and in-depth analysis. Once identifi ed, these authorisation by the administrative authorities or can they form and work on indicators will be used to assess the state of freedom of association at a the basis of a simple declaration? particular point in time, as well as the exact extent of progress and setbacks It is worth mentioning here that not only are legislative provisions taken into in this area in the region and in each of the countries covered. account, but so is administrative practice, which, in some countries, amounts to For the fi rst stage, of an illustrative nature, only fi ve criteria were chosen. imposing prior authorisation in effect, sometimes in contradiction with the law. Although they are not exhaustive, these fi ve elements are considered as being particularly representative of the level of respect for and implementation of • Dissolution: Can associations be dissolved by an administrative decision freedom of expression in law and in practice. For each of them, a distinction against which there is no judicial remedy both effective and suspensive? is drawn between: • In GREEN (light colour) a system of freedom, for countries in which the • Interference: Does the administration have the power, by law or in effect, overall situation is satisfactory: respect or little serious violations of to interfere in the appointments and decisions of the executive bodies as internationally recognized standards and principles; well as in the daily management of the association’s activities, beyond the • In RED (dark colour) a regime of control or repression, for countries limits generally accepted by international standards and prescribed by law, in which the overall situation is not satisfactory: lack of respect or especially in the area of fi nancial reporting? numerous serious abuses against internationally recognized standards and principles. • Foreign funds: Are associations subject to prohibitions or appreciable restrictions of access to funds or donations from foreign sources? The fi ve selected elements, which mainly follow the outline of the country reports, are the following: In the future, it will be desirable to extend the number of criteria identifi ed in order to include further aspects of law and practice in the area of freedom of • Independent associations: Are there associations which are association. independent from the authorities and which, despite possible diffi culties, manage to exist and work?

In order to correctly interpret the table, it should also be underlined that freedom of association is often infl uenced, directly or indirectly, by other legislations, not specifi cally related to the right of freedom of association, or by other country-specifi c issues. Hence, the functioning of Palestinian associations cannot be considered without taking into account the recent internal confl ict, the overwhelming and destructive impact of Israeli occupation and the implementation of Israeli military occupation laws in addition to the Palestinian legislation ; on the other hand, the situation in Israel is marked by the impact of the anti-terror legal apparatus (the Emergency (defence) Regulations, the Ordinance on the Prevention of Terrorism, the Law for the Prohibition of Terror Funding and some provisions of the penal code); in Egypt, the state of emergency, constantly renewed since 1981, accompanied and facilitated the imposition of ever increasing restrictions on freedom of association; in Turkey, the Kurdish issue and the multiple restrictions stemming from it, including on the language to be used and the objectives of the associations, pervade in the whole Turkish legislation and consequently in the daily life of associations working towards a solution to the Kurdish problem or in support of Kurdish rights; in Libya, freedom of association lies within the context of a non-existing civil society, where the exercise of any fundamental freedom is conditional -amongst others- to respecting the “Principles of the Revolution”. Thus, the Libyan State only conceives civil society as a support or even an appendage of the regime, and prohibits any demonstration of independence; similarly, the Syrian legislation, especially on the state of emergency, and practice mainly revolve around the defense of the Baath party and regime in place. As a result, associations are seen as either supporting the regime, in which case they are authorised, or as enemies of the state due to their independence, in which case they are not authorised and repressed most of the time; in Morocco, despite a legislation and practice much more conducive to freedom of association, the constitutional structure of the State, and consequently the central fi gure of the King, and the inviolability of the national territory with regards to the issue of Western Sahara, are two issues which resonate in the Moroccan legislation as a whole and limit the freedom of many associations in practice; in Algeria, the consequences of the civil war continue to have an impact on the life and activities of associations at many levels. The Charter for Peace and National Reconciliation of 2005 and its large set of prohibitions and restrictions with corresponding sanctions, have become a major obstacle to the work of human rights association; in Jordan, security concerns led to the adoption of a series of texts, in particular the Law on Public Meetings and the Law on the Fight against Terrorism, which restrict the associations’ room to manoeuvre and limit some of their rights; lastly in Tunisia, despite a rather formally liberal law on associations, the authorities’ practice refl ects the constant struggle against associations and activists considered to be in the opposition. This relentlessness is expressed trough harassment, surveillance and control measures, censored means of communication, limitations on movements, defamation campaigns and sometimes even the closing down or dismantling of the most vocal associations, in the context of a widespread use of the judicial system as an instrument of power by the regime. These elements led us to insert a 6th column in the table entitled ‘other elements’ which is at this stage still basic, but will be developed and refi ned in more details in the next editions of the Report on Freedom of Association in the Euro-Mediterranean Region.

1 Except for European countries which could not be included here, due to their great number and the diversity of their legislations and situations, and to the fact that the chapter on Europe does not aim at providing a detailed analysis of the situation in each European State.

109 2007

European Union member states

Turkey

Syria Tunisia Lebanon Israel Algeria Palestinian territories Morocco Jordan Libya Egypt

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