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Freedom of Expression for Parliaments and Their Members: Importance and Scope of Protection

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Freedom of Expression for Parliaments and Their Members: Importance and Scope of Protection Freedom of expression for parliaments and their members: Importance and scope of protection Handbook for Parliamentarians No. 28 Acknowledgements This handbook is published by the Inter-Parliamentary Union. Author: Toby Mendel IPU editorial committee: Rogier Huizenga, Gaëlle Laroque and Boutayna Lamharzi The IPU expresses its gratitude to the Swedish International Development Cooperation Agency (SIDA) for its financial contribution towards the production of this handbook. All parts of this publication may be reproduced for personal and non-commercial use on condition that copyright and source indications are also copied and no modifications are made. Please inform the Inter-Parliamentary Union on the usage of the publication content. © Inter-Parliamentary Union, 2018 Cover photo: © AFP/Pool/Pascal Lauener Design and layout: Inkdrop Printed in France by ICA ISBN 978-92-9142-722-2 Table of Contents Foreword .............................................................................................................................6 Abbreviations ......................................................................................................................7 Boxes ...................................................................................................................................8 Introduction ......................................................................................................................10 Part I: International and regional standards and systems ............................................15 Chapter 1 The core standards .........................................................................................16 Core international guarantees ��������������������������������������������������������������������������������������16 Importance of freedom of expression �������������������������������������������������������������������������18 Key characteristics of the right �������������������������������������������������������������������������������������19 Scope ........................................................................................................................19 Positive and negative aspects ...................................................................................20 Seek and receive as well as impart ...........................................................................22 Special protection for public interest speech ............................................................23 Positive obligation to ensure safety...........................................................................24 The right to information .............................................................................................26 Whistleblowers .........................................................................................................28 Freedom of expression and elections .......................................................................29 Chapter 2 Restrictions ......................................................................................................33 Restrictions: General part ���������������������������������������������������������������������������������������������34 The three-part test ....................................................................................................34 The margin of appreciation ........................................................................................38 Sanctions as a breach of the right to freedom of expression ....................................38 3 Restrictions: Specific issues �����������������������������������������������������������������������������������������39 Privacy .......................................................................................................................39 Reputation .................................................................................................................42 Equality, hate speech and religion .............................................................................46 National security and public order ............................................................................49 Morals .......................................................................................................................51 The administration of justice .....................................................................................52 Chapter 3 Regulation of the media .................................................................................56 Independent regulatory bodies ������������������������������������������������������������������������������������57 Media diversity ��������������������������������������������������������������������������������������������������������������58 Regulation of journalists �����������������������������������������������������������������������������������������������59 Licensing ...................................................................................................................59 Protection of sources ................................................................................................60 Regulation of the print media ��������������������������������������������������������������������������������������61 Licensing/registration ................................................................................................61 The rights of reply and correction ..............................................................................62 Dealing with complaints/promoting professionalism.................................................64 Regulation of the broadcast media ������������������������������������������������������������������������������64 Rules governing licensing ..........................................................................................65 Addressing problematical/unprofessional content.....................................................66 Regulation of public service media �����������������������������������������������������������������������������67 Protecting independence ..........................................................................................67 Funding public broadcasters ......................................................................................69 Accountability ............................................................................................................70 Regulating online media �����������������������������������������������������������������������������������������������70 General regulatory standards.....................................................................................70 Regulating content ....................................................................................................71 Encryption and anonymity .........................................................................................74 Promoting access to the internet ..............................................................................74 New challenges .........................................................................................................75 Additional practical reference materials ........................................................................79 4 Part II: Freedom of expression and parliamentarians ...................................................82 Chapter 4 Promoting and protecting freedom of expression ......................................86 General points ��������������������������������������������������������������������������������������������������������������87 Parliaments and their members as legislators �����������������������������������������������������������89 The oversight role of parliaments and their members ����������������������������������������������93 Parliaments and their members as social leaders �����������������������������������������������������94 Parliaments and transparency �������������������������������������������������������������������������������������95 Chapter 5 Parliamentary immunity ...............................................................................99 Inviolability ������������������������������������������������������������������������������������������������������������������101 The Key characteristics of non-accountability ����������������������������������������������������������103 Scope of protection in terms of persons .................................................................103 Scope of protection based on the nature of the statements...................................105 Legal scope of protection ........................................................................................107 Parliamentary powers to regulate speech ����������������������������������������������������������������109 Political parties ������������������������������������������������������������������������������������������������������������114 Chapter 6 Parliaments and other social actors ............................................................117 The media ��������������������������������������������������������������������������������������������������������������������118 Access and accreditation .........................................................................................118 Tolerating criticism and the wider relationship ........................................................122 Civil servants and parliamentary staff �����������������������������������������������������������������������125 Additional practical reference materials ......................................................................128
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