Freedom of Association in the Euro-Mediterranean Region

6 2008 0 Years aftertheUniversalDeclarationofHumanRights in theEuro-Mediterranean Region Freedom ofAssociation Monitoring Report Copenhagen - December 2008 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 60 Years after the Universal Declaration of Human Rights - A Monitoring Report on Freedom of Association in the Euro-Mediterranean Region - Corporate authors : Euro-Mediterranean Human Rights Network (EMHRN) - Publisher : Euro-Mediterranean Human Rights Network (EMHRN) - Date of ﬁ rst publication : December 2008 - Pages : 86 - ISBN : 87-91224-26-8 - Translation into Arabic : Mona Nasser- Translation into French : Anita Goh - Translation into English : Marc Forand - Proofreading, editing and lay-out : Lain Byrne, Anne Czichos, Maryam El-Hajbi, Thibaut Guillet, Marit Flø Jorgensen, Fabrice Liebaut and Marc Schade-Poulsen - Graphic creation : Studio Créamine, St Pryvé St Mesmin, France- Printing : Starprint, France - Photos : Fotolia - Istock - Index terms : Freedom of association / Human Rights / Security and counter-terrorism / Gender- Geographical terms : Mediterranean Countries / North Africa / Middle East

This document has been produced with the ﬁ nancial assistance of the European Union. The contents of this document are the sole responsibility of the Euro-Mediterranean Human Rights Network and can under no circumstances be regarded as reﬂ ecting the position of the European Union. TABLE OF CONTENTS

INTRODUCTION, INDICATORS AND GENERAL RECOMMENDATIONS ...... 3

COUNTRY REPORTS

Freedom of Association and Recommendations in 2007-2008 In Algeria ...... 13 In Egypt ...... 17 In Israel ...... 23 In Jordan ...... 27 In Lebanon ...... 31 In Libya ...... 33 In Morocco ...... 37 In Syria ...... 41 In the Palestinian Territories ...... 45 In Tunisia ...... 49 In Turkey ...... 55 In Europe ...... 59

THE IMPACT OF COUNTER-TERRORISM POLICY ON FREEDOM OF ASSOCIATION IN THE EURO-MEDITERRANEAN REGION ...... 67

DISCUSSION PAPER ON GENDER AND FREEDOM OF ASSOCIATION IN THE SOUTH AND EAST MEDITERRANEAN ...... 77

Introduction, Indicators and General Recommendations

by Malcolm Smart

Introduction

The right of individuals to come together and form associations - political parties, social and cultural associations, human rights organisations, trade unions, charitable welfare associations and the like - was clearly established in international law some 60 years ago when the United Nations (UN) General Assembly adopted the Universal Declaration of Human Rights on 10 December 1948. Article 20 of that Declaration - the UDHR - states that “Everyone has the right to freedom of peaceful assembly and association.”

Several south and east Mediterranean states - Egypt, Lebanon, Syria and Turkey -participated in that historic General Assembly debate and all were among the 48 states that voted to adopt the UDHR. The Charter was overwhelmingly approved: only six states abstained and no state registered a negative vote. Subsequently, all 11 south and east Mediterranean states covered by this report became party to the two main international human rights treaties that followed the UDHR, the International Covenant on Civil and Political and Rights and the International Covenant on Economic, Social and Cultural Rights.

Despite this auspicious start, 60 years on, the rights and principles enshrined in the UDHR - including the right to freedom of association - are inadequately respected in practice, including by the states of the south and east Mediterranean which are the subject of this report. In addition, for the most part, these states have yet to incorporate their obligations under international human rights law into their national legislation, and thereby make these obligations enforceable by their national courts.

As the country chapters that follow plainly show, governments in these countries continue to use all manner of legal and other obstacles to impede the universal rights to freedom of association and the associated rights to freedom of expression and assembly. Through these means they deny their critics, including human rights defenders and organisations, the means to challenge them or their policies and to press for legal reform, and they severely constrain media freedom and reporting, as well as the development of robust civil societies. In most countries, laws have been created or are applied so as to obstruct freedom of association; in some, state authorities frequently resort to illegal means, including violence, to deny the right of association to citizens or others within their jurisdiction. In short, six decades after the adoption of the UDHR, governments continue to pay little more than lip service to their obligations to promote and respect freedom of association.

In the year under review here - 2007/2008 - there were few signs of positive change. On the contrary, several governments moved to further tighten restrictions on the formation of associations, notably those seen as likely to criticise state policies and repression, and to assert greater, more intrusive control over those that already exist, and to threaten their very continuance. At the same time, governments across the south and east Mediterranean region continued to clamp down on expression and dissent. Using vague and broadly-framed insult laws or specious “national security” grounds, they prosecuted journalists, bloggers, human rights defenders and others who spoke up for rights and justice. They banned or forcibly dispersed peaceful protests, and they allowed all-powerful security forces to harass, arrest and detain critics and, sometimes, to torture or otherwise ill-treat them with impunity.

ANTI-TERRORISM

This grim picture was part of a much wider trend established following the 9/11 attacks on the United States of America (USA), which sparked the so-called War on Terror. This brought a sea-change in policy on the part of Western states, which has seen human rights much more clearly and emphatically subordinated to the interests of states’ counter-terrorism strategies. The governments

5 INTRODUCTION, INDICATORS AND GENERAL RECOMMENDATIONS 6 and runbyoneoftheLibyanleader’s sons. challenge ColonelMu’ammarQaddafi ’s planstorely forthisisoneestablishe rule,theorganisationinwhichUKgovernment returned are nottortured; toleratesnoindependentassociationsororganisationswhich could inLibya,where thegovernment 6 been ratifi ed by35UNMember States. 5 is reallyaheadofusonthisissue” and fromthemandthereismuchwecandotogether.”“we have muchtolearn 4 3 Memorandums ofUnderstanding. 2 prevent theemergenceofa “Taliban-type” regimeinnorth Africa, andsuggestedthatthegovernmenthadincreasedlevelof 1 Economic, SocialandCulturalRights(ICESCR),whichcameintoforce in1976. Covenants, oneaddressinghuman rightstreaties, particularly thetwoInternational CivilandPoliticalRights(ICCPR) human rightslaw. Subsequently, therightsitsetouthavebeenmore fullyarticulatedanddefi ned inaseriesofinternational The UDHR,whenitwasadopted60yearsagobythetheninfantUN,laidfoundationsforcurrent systemofinternational FAILING TOHONOURINTERNATIONAL ANDREGIONALCOMMITMENTS name ofcounter-terrorism. confronted withevidenceofcontinuingtorture orotherserious rightsviolationsinsuchcountries,especiallywhencommitted Syria havelongbeennotorious-hastendedtocausetheformercriticsnowbefarlessvocal,orlookotherway, whe with suchstates-andsometimestobenefi t from theabusivemethodsforwhichsecret policeincountriessuchasAlgeriaa east Mediterranean,whosepoorhumanrightsrecords theypreviously criticised.Their desire toshare anti-terrorism intelligen suchasthoseinthesouthand meanwhile, ithasseenthemmovetoestablishcloserlinksandcooperationwithgovernments ordinary citizens,stricterborder controls, anddetentionsdeportationsofuntriedoracquittedterrorism suspects.Intern these states,thechangehasbeenrefl ected bytheintroduction orstrengthening ofanti-terror laws,heightenedsurveillanceo their approach andsacrifi ced suchprinciplesinthenameoffi ght againstterrorism, particularlyIslamistterrorism. Ath of theUSAandotherWesterndemocracieswhoformerlyespousedimportancehumanrightshavenowdowngraded protect andpromote therightstheysetout. treaties.international Inotherwords, theyhaveentered intoanobligationtoadhere totherequirements ofthetreaties and All 11ofthestatesbeingconsidered inthisreport have ratifi Covenantsandareed thetwoInternational StatesPartytothes necessary toprotect nationalorpublicsecurityorder, publichealthormoralstherightsandfreedoms ofothers. other media”ofanindividual’s choice.Theserightsare capableofrestriction butanylimitationsmustbeprescribed bylawa impart informationandideasofallkinds,regardless offrontiers, witherorally, inwritingorprint,theformofart, expression andtherightofpeacefulassembly. Theformerstatesthatfreedom ofexpression includes“freedom toseek,receive shall havetherighttofreedom ofassociationwithothers”,andArticles1921respectively guaranteefreedom ofopiniona authoritarianism andfurtherentrench theirresistance tohumanrightsreform, justiceanddemocraticaccountability. Mediterraneancountrieshashelpedthemtojustifytheir andintelligenceservicesofthesoutheastern governments This trend towards closercollaborationonintelligencegatheringandexchangebetweentheWesterndemocracies andthe where theyare likelytobetortured. terrorism suspectstoTunisia lawnottoreturnindividualscou andEgyptinbreach oftheirobligationsunderinternational Convention onHumanRights. terrorismand Libyatoenablethemreturn suspectsatriskoftorture incontraventionoftheUK’s obligationsundertheEur forexample,hasagreedKingdom (UK)government, “MemorandumsofUnderstanding”withtheauthoritiesinJordan, Lebanon by mostsouthandeastMediterraneanstates,theirowndirect actionsagainstallegedterrorism suspects.TheUnited previously occupied.Thereputations ofEuropean statestoohavebeenmired bytheircomplicityin“renditions,” acomplicitys of unchargedsuspectsfrom onesecret placeofdetentiontoanother-hascutawayanymoralhighground thattheUSgovernment More particularly, thedetentionsandill-treatment atGuantanamoBay, Cuba,anditsuseof“renditions” -secret, unlawfultra They were bothopenedforsignature, ratifi cation and On26September2001, ofStateColinPowellexpressedappreciationfor Egypt’s USSecretary “commitment” todealingwith “the However, theMOUhasbeenrejectedbyUKcourtsasnotbeingsuffi ciently independentoftheregime soastobeeffective Inpractice, todate, UKcourtshavedeclined toallowtheUKauthoritiesforciblyreturnindividualsJordan, Lebanonor Visiting Tunisia on28 April 2008, FrenchPresidentNicolasSarkozycommendedthe Tunisian government’s counter-terrorism pol The Palestinian Authority, which lacksthestatusofaMemberState UN, cannotformallybecome aStatePartytotheICCP 1

2 Indoingso,ithassoughttoco-optlocalNGOsinthethree countriestoprovide acheckthatthose 6 accession bytheUNGeneral Assembly in1966andbothenteredintoforce Yet, theycontinuetofaildoso.Thiswasreﬂ ected inthesuccessivesessionslate 3 Meanwhile,otherEUstates,suchasFranceandSweden,haveforcibly transferred 5 Article22oftheICCPRstatesthat“Everyone Libyaunderthetermsofrespective personal freedom. when mostneeded scourge ofterrorism,” adding R andtheICESCR. icies, sayingthat theyhadhelpedto earlyin1976aftertheyeachhad 4 or through any ationally, ome in

opean “Egypt... nsfers nd be hared in the ntries other and nd nd ce to d n e f

of theCovenant. governmental organisations(NGOs)andnationalhumanrighstinstitutions(NHRI). governmental including therecommendations ofUNTreaty Bodies,andasummaryofsubmissionsmadebyotherstakeholders, suchasnon- Human Rights(OHCHR),bothacompilationofUNinformationdrawnfrom thereports oftheSpecialProcedures mechanismsand addition tothestatereport, the CouncilalsohasaccesstoinformationcompiledbytheUN’s Offi ce oftheHighCommissionerf have committedtotheirhumanrightsrecords considered bytheCounciloverafour-year cycle.Thesystemprovides that,i Universal PeriodicReview(UPR)process establishedbytheUNHumanRightsCouncil.UnderUPR,all192memberstates The humanrightsrecords ofAlgeriaandTunisia, aswellthatofMorocco, were alsoreviewed inearly2008underthenew association andassemblycalledontheLibyanauthoritiesto“toguaranteeexercise inpractice”oftheserights. reform ofthePublicationAct1972,criticisedlegalandotherrestrictions whichprevent exercise oftherights tofreedom Itcalledforurgent and expression, bothinlawandpractice,imposedonpeacefulcriticsopponentsofthegovernment. In itsconcludingobservationsonLibya,forexample,theHRCpointedtocontinuing“extensivelimitations”freedom ofopini requirements oftheICCPR. assembly, andcalledforurgentstepstobetakenbythethreebringtheirlawpracticeintocompliancewith governments all three cases,theHRCcriticisedseriousabusesofhumanrights,includingviolationsfreedom ofassociation,expression 2007 andearly2008,inwhichtheHumanRightsCommittee(HRC) 10 9 8 7 of associationandassemblytoguaranteetherightanyappealagainstrefusal ofregistration. and whichprevent offi cial registration ofassociations.TheCommitteeurgedtheAlgerianauthoritiestorespect therightsto defenders andorganisationsfrom freely pursuingtheirlegitimateactivities,includingbydenyingrightofpeacefuldemo offi cials andare usedtoprosecute Itcomplainedtooaboutoffi andimprisonjournalists. cial restrictions whichprevent human andcalledfortherepealharassment andintimidationofjournalists CriminalCodeprovisions whichcriminalisedefamationo not to“denythelegitimateexpression ofrights”establishedintheICCPR.TheCommitteealsoexpressedaboutstate concern and questionedthe“particularlybroad defi nition” ofterrorist Alg andsubversiveactscontainedintheCriminalCode,warning Reconciliation whichinfringefreedom ofexpression andtherighttoaneffective remedy forthosesubjecttohumanrightsviol regardWith toAlgeria,theHRCcalledforrepeal ofprovisions intheOrdinance enactingtheCharterforPeaceandNationa 2008 atameetinginEgyptofMinistersInformation.TheMinisters, allrepresenting memberstatesoftheArabLeague adopte occurredA furthersignoftherights-restricting inFebruar tendenciesmanifestamongsouthandeastMediterraneangovernments term obviouslyopentowideinterpretation bystateauthoritieseagertoclampdownontheircritics. freedom ofopinion,expression andaccesstoinformationbeexercised “inconformity withthefundamentalvaluesofsociety,” a humanrightsconventions-forexample,requiringdown someoftherightscontainedinmaininternational thattherightst Palestinian Authority. Unfortunately, whileitcontainssomeprogressive provisions, theCharter, whichwasrevised in2004,wa state ratifi cation. Amongsouthandeast Mediterranean states,Algeria,Jordan, LibyaandSyriaare partiestotheCharter, as InMarch 2008,anewhumanrightsinstrument,theArabCharteronHumanRights,came intoforce afteritobtainedseventh ARAB CHARTER ONHUMANRIGHTS and prompt recourse” iftheirapplicationsare rejected. rights organisationsanddefenders”;toensure thathumanrightsorganisationsare offi ciallyregistered orprovided with“ amend thePress Code;toend“actsofharassmentandintimidation”respect andprotect thepeacefulactivitiesofhuman by theauthorities.”TheCommitteeurgedauthoritiestoend“direct andindirect restrictions onfreedom ofexpression” and orstateinstitutions,andthe“verylimitednumberofindependentassociations[that]havebeenregisteredgovernment offi cial extensive” defi nition ofdefamationinthePress andotherswhocriticisethe Codeanditsapplicationtoprosecute journalists The HRCconsidered thereport ofTunisia atitsfi rst sessionin2008.Itaddressed asimilarlistofissues,notingthe“parti Human RightsCommittee, Ninety-second session, CCPR/C/TUN/CO/5 Human RightsCommittee, Ninety-fi rst session, CCPR/C/LBY/CO/4 The HumanRightsCommittee, establishedunder Article 26oftheICCPR, isthe18-memberbodywhichconsidersStatesParty’s per Human RightsCommittee, Ninety-fi rst session, CCPR/C/DZA/CO/3 10

7 examinedtheperiodicreports ofAlgeria,LibyaandTunisia. In iodic reportsontheirapplication 9 8

nstration, freedom effective cularly rights f state ations is the and ters the eria d a to on or of ly o n y l

INTRODUCTION, INDICATORS AND GENERAL RECOMMENDATIONS INTRODUCTION, INDICATORS AND GENERAL RECOMMENDATIONS 8 when there isa“publicemergencythatthreatens thelifeofnation,”butrequires thattheyshouldbemaintainedfornolo The longdurationofthesenational emergenciesfl law.ies inthefaceofinternational Thisallows statestodeclare statesof martial law. of emergencyisevenlongerduration,havingbeeninforce continuouslysince1963,when thecountryhasalsobeenund temporary, emergencypowersintoEgypt’s statutelaw, sorendering anyrenewal ofthestateemergencyredundant. Syria’s sta 2007, however, anewanti-terrorism lawisexpectedtobeintroduced thatwillimporttheworstfeatures ofthecurrent, ostens period inMay2008.Followingcontroversial constitutionalamendmentspushedthrough byPresident Mubarak’s in government preceded, saveforabreak ofayearorso,byprevious long-runningstateofemergency), wasrenewed for afurthertwo-year Algeria’s stateofemergencyhasbeeninforce continuouslysince1992.Egypt’s, inforce continuouslysince1981(andwhichwa newspapers. confi scate property; tobanorganisations orprotests onvagueandarbitrarygrounds; andtocensorthemediaclosedown statutory law-toarrest anddetaincritics,ofteneffectively indefi nitely, anddenythemfairtrialoranytrial;tosearch emergency. Theseequiptheauthoritieswithfar-reaching emergencypowersthattheycanexercise inadditiontothosefoundund On topoftheserestrictions, three ofthestatesconsidered here -Algeria,EgyptandSyriaremain underlong-runningstates order,” whileJordan’s 2006Prevention ofTerrorism Actcanbeusedagainstpersonsaccusedof“damaginginfrastructure.” 2003, opensthewayforterrorism chargestobebrought againstthosedeemedtoberesponsible forillegitimately“disturbingp may alsobeusedtorestrict or suppress legitimatedissentandexpression. Forexample,Tunisia’s lawonterrorism, introduced Several states-Jordan, Morocco, Tunisia -alsopossessanti-terrorism lawsthatcontainoverlybroad defi nitions ofterrorism an exhaustivelist-are citedbelow. having a“chilling”effect onfreedom ofexpression andmediafreedom. Briefexamples-regrettably, theyare farfrom constitu human rightsdefendersandotherswere prosecuted on suchgrounds, andinsomecasessentencedtoprisonterms-inevitably its leadersorinstitutions,toreligious orothernationalculturalvalues.Across theregion in2007-2008,editors,jou criminalise expression -newspaperreports, weblogsand othermedia-whichtheauthoritiesdeemtobeoffensive tothestate, then prosecute themforexercising theirrighttofreedom ofassociation“unlawfully.” Moststatesalsohavenationallawswhic example, bydirectly refusing toaccepttheirregistration submissions,ashasbeenapracticeoftheTunisian -and government obstructorprevent humanrightsdefenders andothercriticsfromsome governments offi cially registering organisations-for and imposepenaltiesonthosewhojoinorparticipateintheactivitiesof“illegal”organisations.Inasort“catch22”sit requiring themtoobtainoffi cial authorisation,whichmayoftenbedelayedorwithheldbystateauthoritieswithoutgoodreaso organisationsandassociations, Such lawsincludedthosewhichimposeexcessiveconditionsontheformationofnon-governmental treaties suchastheICCPRtowhichtheyare party. these rightsandplacedtheirexercise underdegrees laworhuman right ofcontrol beyondthosepermissible underinternational of freedom ofassociationandexpression intheirconstitutions,practicetheymaintainedabatteryofotherlawswhichcut south Mediterraneancountriescontinuedtofacemanyanddiverseobstacles.Althoughmoststatesrecognised theimportance Throughout 2007-2008,advocatesoffreedom ofassociation,expression andotherhuman rightsinthecountriesofeastand RIGHTS INPRACTICE:THEYEARREVIEW of nationalsovereignty,” andprescribe fi nes orotherpenaltiesforthosewhofailtodoso. have licensingauthoritiesrequire satellitebroadcasters to“protect thesupreme interests” ofArabstatesand“respect thepr terminology usedinnationallawstolimitorpenaliseotherlegitimateexpression. Further, theInformationMinisters’Princip peace, nationalunity, publicorder, andpublicmorals”or“defameleaders,nationalreligious symbols,”echoingthebro right toknow. This,theypropose, shouldbedonebyinsistingthatsatellitebroadcasters’ reports donot“negativelyaffect s debate, theyurgestateregulatory authoritiestorequire satellitebroadcasters toputstateandpoliticalinterests before th refl aboutthepopularityofpan-ArabsatelliteTVbroadcasters concern inopeninguppublicspace ection ofrisinggovernmental binding guidelines,butifimplemented,theywouldimposenewcontrols onmediafreedom andaccesstoinformation.Apparently a representativeby theLebanesegovernment andthatofQatar, hometoAl-Jazeera,thePrincipleshavestatusonlyofnon-leg set of“PrinciplesforOrganizingSatelliteBroadcast andTelevision Transmission andReceptionintheArabRegion.”Opposedon emergency homes and e public’s les would rnalists, rnalists, , which uation, inciple away ublic ocial nger ting ibly for ally of ad in er er te n, ly h s s

southern cityofSidiIfniinJune2008. southern allegations thatsecurityforces hadcommittedserioushumanrightsviolations,includingrape, whilesuppressing protests int USA. InMorocco, theauthoritiesaccusedahumanrightsdefenderof“disseminatingfalseinformation” afterhepubliclydisclos the Turkish army”,andmembersofachildren’s choirwere prosecuted forsingingaKurdish anthem atamusicfestivalinthe 301 ofthePenalCodehaslongbeenusedtosuppress expression, ahumanrightsactivistwassentencedtoprisonfor“denigrati and sentencedtoajailterminAugust2008.Bloggerstoowere jailedinEgypt,Morocco andSyria.WhileinTurkey, where Artic convicted ofdamagingthenationalinterest bysuggestingthatforeign assistanceshouldbeusedtopress fordemocraticreform and humanrightsdefenders.InEgypt,thedistinguishedacademicDrSaadEddinIbrahimwasjustoneofthosetargeted;he as damagingthereputation ofthenationorspreading falsenewsandwere critics usedtoprosecute andpenalisegovernment Most southandeastMediterraneanstatesmaintainedlawswhichpenaliselegitimateexpression onwidelycouchedgrounds such FREEDOM OFEXPRESSION him. through variousstagesofappealovertheyears,duringwhichthreat ofimprisonmentcontinued,asitstilldoes,tohango 20 peoplewhohadbeenabductedandapparently murdered, thensecretly buriedbystate-armedmilitia)andthe casehadbeen allegedly “denouncingimaginarycrimes”(hehaddisclosedpubliclythediscoveryofamassgravecontainingbodiessome de l’Homme,LADDH)hadhisoriginaltwo-monthprisonsentencere-imposed. Hehadfi rst goneontrialsevenyearsbefore for Mohamed Smain,amemberoftheAlgerianLeagueforDefenceHumanRights(LigueAlgeriennepourlaDefensedesDroits one ofherpositionswithintheAlgeriancivilserviceinMay2008onaccountactivismsupporttransitionaljustic in theAlgeriachapterofthisreport underscore thereality ofthisrisk:humanrightsdefenderCherifaKheddarwasdismissed gross abusesofthepastandtodemandtruthjusticedosoatriskbeingprosecuted andimprisoned.Two casesdescribed expression. However, asyet,theAlgerianauthoritieshavetakennostepstocomplyandthosewhocontinuespeakoutaboutt place. Asreported above,theHumanRightsCommitteehascalledforrepeal oftheseconstraintsonlegitimatefreedom of and imprisonment.Inotherwords, whiletheworstcriminalsgofree thosewhodenouncetheircrimesare madecriminalsintheir the mostheinouscrimesare afforded impunity, butthosewhodare tospeakoutagainsttheCharter are madeliabletoprosecuti conflother gross abusescommittedduringtheinternal ict whichravagedAlgeriainthe1990s.UnderCharter, perpetratorso security forces andoffi cials andothersresponsible forthethousandsofpolitically-motivatedkillings,enforced disappearanc hasgonefarther,In Algeria,thegovernment legislatingaCharterforPeaceandReconciliationtogiveimpunitymilitaryan they considercouldbedamagingtothem. information -forexample,regarding policyorgross high-levelcorruption,failures ofgovernment violationshumanrights- their statesofemergencybecausetheseprovide aconvenientpretext forsuppressing oppositionanddissentortheexposure of than isgenuinelynecessary. ofAlgeria,EgyptandSyriamainta Inpractice,there canbelittledoubtbutthatthegovernments President Yasser Arafat,whileatleastoneperson wasshotdeadbyPA forces atademonstration inHebron intheWest Bank.In Strip whenHamasforces fi red onarallybeingheldbyFatahsupportersthethird anniversaryofthedeath formerPalesti forces killedandinjured peoplemountingprotests: inNovember2007,atleastsixpeoplewere killedandothers injured inthe April 2008aftertextileworkerscalledastrikeatMahalla,andindispersing otherpopularprotests. IntheOPT, bothPA and Human RightsDayinDecember2007.Egyptiansecurityforces usedexcessiveforce andliveammunitionagainstdemonstrators in years before, andtheSyrian authorities arrested membersoftheKurdish minoritywhentheysoughttodemonstrateonInternatio organisation toholdralliescommemoratetheNakba,when Palestinians were forced toleavetheirhomesbyIsraeli forces 60 when theysoughttoprotest againstavisitbytheSyrianForeign Minister. refused TheJordanian government topermitanIslam people callingforinvestigationsintothousandsofenforced disappearancesbySyrianforces were brutallydispersedbypolice adoption provided immunity against prosecution toperpetratorsofthegross abusescommitted duringthe1990s,whileinLebanon their emergencypowerstobandemonstrationsbythoseopposed totheCharterforPeaceandNationalReconciliation,whose bans onsuchactivityorwere punishedfortheirtemeritybyheavyhanded-policeandsecurityforces. InAlgeria,theauthoriti All across theregion, peoplewhosoughttogathertogether peacefullytoexercise theirrighttoprotest were hindered bygove THE RIGHTTOPEACEFULASSEMBLY es used e, while Hamas rnment rnment es and Gaza that from nian ver nal ng on ed he he ist in le d , f

INTRODUCTION, INDICATORS AND GENERAL RECOMMENDATIONS INTRODUCTION, INDICATORS AND GENERAL RECOMMENDATIONS 10 In Security Court. in recent years,though,atleast, theyare notfacingtrial,assomanyothershavedone,before thenotoriouslyunfairsuprem trials ofhumanrightsdefenders,minorityactivists,political commentators,bloggersandothersthathavebeenheldin On 29October2008,theywere sentencedtotwoandahalfyearsinprison.Regrettably, theirsisonlythelatestinalongser Subsequently, 12ofthemwere chargedwith“weakeningnationalsentiment”and sentfortrialbefore theDamascusCriminalCourt launched aseriesofarrests followingameetingoflongstandingadvocatespoliticalreform inDamascusDecember2007. members ranaconstantriskofarrest andprosecution or were subjecttootherharassment,suchastravelbans.Thesecuritypo approval theauthoritieswithalistofparticipants.Severalhumanrightsgroups existed,nevertheless,butthe andtofurnish and pro-reform groups, andthosewishingtoholdpoliticalforumsordiscussiongroups were required toobtainpriorgovernment In agreement startedinautumn2008. NGOs are bannedinLibyaundera1972law. Despiteseriousongoinghumanrightsabuses,negotiationsonafuture Framework as “spreading falserumours”and“attemptingtooverthrow thepoliticalsystem.”Independentparties,tradeunionsan were arrested, andlatertheywere triedbefore thenewly-formedStateSecurityCourtonbroad andvaguely-worded charges,such at least12people,killedbysecurityforces ayearearlierduringprotest inBenghazi.Before theycouldevenholdthesit- 2007, Boufayedandothersannouncedonawebsitetheirintentiontoholdpeacefulsit-inprotest tocommemoratethedeathsof six to25yearsinJune2008,solelyforthepeacefulexercise oftheirrightstofreedom ofassociationandexpression. InJan expressed dissent,asexemplifi ed bythecase ofIdrissBoufayedand11others,whowere sentencedtoprisontermsrangingfrom or press forpoliticalorotherreform facedhugechallenges.TheLibyanauthoritiescontinuedtoclampdownhard onallthose In both former someorganisationshaveexperienceddelayswhiletheyare beingcheckedbythesecurity authorities. most southandeastMediterraneancountries.InbothLebanonIsrael,registration wasrelatively straightforward, although Human rightsdefendersandothersfacedseriousobstaclesinobtaininglegalregistration oftheirassociationsandorganisatio FREEDOM OFASSOCIATION and eastMediterraneancountries. access thefullrangeofhumanrightsonanequalfootingwithmenremains oneoftheforemost challengesconfronting thesouth dangerous, totakeanactiveorleadershiprole inpublicaffairs. Improving thestatusofwomenandenhancingtheir opportunit social,cultural andreligious valuesandpressures, aswelleducationandeconomicdefi cits, whichmakeitespeciallydiffi c characteristics oftheregion. Inmostcountries,womenremain subordinated under the lawandintheirdailylivesare subject complex offactors,butstems,essentially, from pervasivegenderinequality, whichremains oneofthemostmarkedandenduring the women,asoneoffollowingchaptersdescribes,challengesare infi nitely greater thanthey are formen.Thisisdue south andeastMediterraneancountriestoadvocatefortherealisation inpracticeoftheirandothers’rightsare daunting. Bu The obstaclesandrisksconfronting humanrightsdefenderswhoseektoformindependentassociationsandjointogetherinthe THE GENDERGAP severely limitedandthosewhotestedthelimitswere madetopayaheavyprice. by SahrawiadvocatesofautonomyinWesternSahara.Alltoooften,thespaceallowedforopenanddemocraticdebatewas Morocco, forces government violentlybroke upademonstrationinSidiIfniJune2008andmaintainedtightcontrols onprotes the activitiesofhumanrightsorganisations inmultipleways.Nosuchorganisationshavebeen able toobtainlegalregistratio rosy commentsofFrench President NicholasSarkozy whenhevisitedTunis inApril2008.Inpractice, theauthoritiesimpeded the easyrideitgotwhenpresenting itsrecord undertheUPRprocess before theUNHumanRightsCouncilandmisjudged, level-evidentlywithconsiderablesuccess soughttocultivateattheinternational image onhumanrightsthatthegovernment Thisrealityauthorities interfered beliedthefarmore intheoperation ofassociationsdeemedcriticalthegovernment. pos Syria Tunisia Libya , theMinistryofSocialAffairs andLabourcontinueditsrefusal toallowthelegalregistration ofhumanrightsorganisations , humanrightsdefenderswere alsosubjecttofrequent harassmentandintimidationbystatesecurityoffi cials andthe and Syria , however, thosewishingtoexercise theirrighttofreedom ofassociationtoaddress humanrightsviolations ult, even in, they e State Syria in the ies to ies of given ns in n for toa uary who t for itive lice to ts d ir .

measures imposedbyIsrael,whichalsocriticallyimpedePalestinians’ abilitytoexercise their rightstofreedom ofassociati added signifi cantly totheimpactofsuffocating restrictions onmovement -checkpoints,road blocksandotheroppressive The confl ict betweenFatahandHamas,which culminatedinJune2007withHamas’s forcible seizure of powerintheGazaStrip, the deepriftbetweenrivalPalestinianpoliticalorganisations. or considered sympatheticto theother. Thisoccurred asthesituationinOPTunderwentafurthermarked deteriorationdue Occupied PalestinianTerritories (OPT),boththeFatah-ledPalestinian Authority(PA) andHamas suppressed organisationsaffi li emergency powersonthegrounds thatthiswas“necessary”toprotect statesecurity, publicwelfare andpublicorder. Inthe In byanadministrativecourtrulinginMarch 2008. to beoverturned orderedoccurred whenthegovernment theclosure ofthree branchesofaworkers’rightsorganisationearlierin2007, onlyfor organisations hadbeenabletocontestorders fortheirdissolutionbefore theadministrativecourts.Indeed,thisiswhathad assistance tovictimsofhumanrightsabuse,onthegrounds thatithadreceived foreign fundingwithoutauthorisation.Formerl confi thenpromptlyrmation from ordered theadministrativecourt.Thegovernment thedissolutionofanorganisationproviding l Regulations inJuly2007toallowtheauthoritiesorder thedissolutionofalegallyregistered organisationwithoutawaitin of The government reviewed inorder tocreate more restrictive registration criteria. offi cial receipt required undertheAssociationsActof1990toconferlegalstatus,InteriorMinisterhintedthatact In grounds. toorder legallyregisteredimprisonment, andempowersthegovernment organisationstobedissolvedonvarious,relatively mino rights organisations-withoutfi approval, criminalisinganyinfringementwithuptothreerst obtainingpriorgovernment month or refusal. Italsoprohibits organisationsfrom acceptingforeign funding-amainsource ofincomeformostJordanian human This creates anewstageofapproval tobeobtainedwhenseekingregister anorganisation,offering potential foroffi cial d In respected inpractice. conducive tohumanrightsandthepromotion ofaclimateinwhichfreedom ofassociation,expression andotherkeyrightsare internationally,meetings. Inshort,andcontrarytotheimagesoldbygovernment itsapproach athomewasdirectly counter members, andpolicesecurityoffi cials sometimesphysicallyblockedaccesstoitsoffi ces toprevent thembeingusedfor by overt,heavysurveillanceoftheirhomes.TheLTDH, meanwhile,wasunderminedbylawsuitsfi led ostensiblybydissenting abroad. Theirleadersandactivistswere arrested, threatened, hadtheirproperty vandalised,andwiththeirfamilieswere hara linkswereform oflegallimbo.Theirphonesandinternet frequently cuttodisrupttheircommunicationwithoneanotherandpe prevent themfi ling documentsrequired tocomplywiththelaworissuereceipts acknowledgingtheirsubmission,existedina des Droits del’Homme,LTDH) facedconstantharassment.Organisationsdeniedregistration bytheauthorities,whocontinuedto some 20years,andthosethathaveregistration whichpredates that,suchastheTunisian HumanRightsLeague(LigueTunisienne In organisation’s statutes,butwithoutidentifyingthese. grounds relating failure to“remedy toarticlesintheLawonAssociationsandCivilCodeconcerning errors anddefi ciencies” i family structure.” Thecourtdidnotexaminethesubstanceofclaim,butordered theorganisation’s closure onprocedural Istanbul afterthegovernor’s offi ce brought acomplaint claimingthatitsobjectiveswere againstTurkish “moralvalu The authoritiesalsotookactionagainstgayandlesbianactivists.InMay2008,alocalcourtinIstanbulordered theclosure territorial integrity. Thechiefprosecutor isalsoseekingthebanningofDemocraticSocietyParty. principle ofsecularism,advocatingreligious fundamentalismorforpromoting Kurdish ethnicidentity, deemedtothreaten Turke party. Thecourthadpreviously ordered thebanningofmore than20politicalpartiessinceitwascreated in1962,forbreachi and plannedeventuallytoestablishanIslamicstate.Whiledenyingthepetition,courtordered acutinthestatefunding members from participatinginpoliticsforfi ve years.Theprosecutor hadarguedthatthepartywasengaginginanti-secularac for anorder requiring thedissolutionofrulingJustice and DevelopmentParty, andtobanthecountry’s President andothe Jordan Turkey Algeria Israel , theDefenceMinisterbannedAl-AqsaAssociationforRestoration onMuslimHolySitesinAugust2008,using , thecountry’s ConstitutionalCourtdecidedbyanarrow voteinJuly2008toreject anapplicationfrom thechiefprosecutor , the government movedtotightencontrols onNGOs,introducing, thegovernment anewlawonCharitableSocietiesandSocialInstitutions. , where theauthoritieshavearecord ofblockingtheregistration ofhumanrightsorganisationsbyrefusing toissuethe Egypt , whichintroduced acontroversial newassociationslaw(Law 84of2002)in2002,amendeditsExecutive of Lambda should be on and es and for the r party ng the tivities ssed ated n an ople egal elay this y’s to s’ y, y, g - r

INTRODUCTION, INDICATORS AND GENERAL RECOMMENDATIONS INTRODUCTION, INDICATORS AND GENERAL RECOMMENDATIONS 12 INTRODUCTION TO2008INDICATORS - - Three newcategorieshavebeen introduced: removed theindicatorrelated tothepresence ofindependentassociations,becauseitappeared tobetoovague acriterion. to increase thenumberofcriteria, butwehavealsofurtherdevelopedthefi ve ofthesixcriteriamentionedabove.We haveal This year, withaviewtobeingmore specifi c andbetterrefl ect whatfreedom ofassociationisinpractice,wehavenotonlyd where thejudiciaryhasbeen stableforquitealongtime.) refl ects animprovement inthefunctioningofjudiciary, whereas itwouldnecessarilybeviewedinamore negativelightin (For example,anincrease oflegalcomplaintsintheSouthorEastMediterraneancountries maybeapositivedevelopmentifit and 2008.Theywere draftedwiththeaimoflinkingquantitativeandqualitativestatementstoavoidriskmisunderstandi The 2008indicatorsmustberead inlightofthosepublished2007,astheyaimtoassessprogress andsetbacksbetween2007 internationally-recognised standards andprinciples)(seebelow). control orrepression (forcountriesinwhichtheoverallsituationisnotsatisfactory:lackofrespect ornumerous seriousab situation issatisfactory:respect standards orfewseriousviolationsofinternationally-recognised andprinciples)aregi and otherelements).Foreachofthem,adistinctionwasdrawnbetweensystemfreedom (forcountriesinwhichtheoverall practice (presence ofindependentassociations,priorauthorisationtoregister, dissolution,interference, accesstoforeign f Last year, sixcriteriawere chosentomeasure thelevelofrespect forandimplementationoffreedom ofexpression inlawand and honoursthemtheirwork. commitment ofthemanymen,women,evenchildren, whostrugglegivesreal hopeforthefuture. Thisreport bothacknowledges region andundauntedinitspursuitoftheidealsUDHR.Sixtyyearson,muchisstillto beachieved,butthededication challenges. Yet, despitethis,thehumanrightsmovementisaliveandwell,activeundauntedinmostofcountriesth for reform, openlydissentorevendivulgeinformationwhichtheexecutivepowersdonotwishexposed,facemanyrisksand thesouthandeastMediterranean countries,asthisreport shows,humanrightsdefenders,aswellotherswhocall Within rights. Commission andEUMemberStatestotakepracticalmeasures toassisthumanrightsdefendersandalsoupholdtheirfundamental importance oftherole ofthoseworkingtoprotect andpromote humanrightsbothat homeandabroad, andcallsontheEuropean In June2004,theEuropean Union(EU)adopteditsownGuidelinesonHumanRightsDefenders,whichsimilarlyrecognise the exercise theirrightstofreedom ofassociation,expression andassemblywhileworkingtodefendpromote human rights. and fundamentalfreedomslevels.”TheDeclarationstresses theimportanceoftheirbeingable atthenationalandinternational person who“individuallyandinassociationwithothers,promotes andstrivesfortheprotection andrealization ofhumanright not needtobevotedintheGeneralAssembly, recognises theimportanceofrole ofthehumanrightsdefender. Thisisthe Rights Defenders,asitisgenerallyknown,on9December1998.TheDeclaration,whichreceived suchwidesupportthatitdid Ten yearsagoand50aftertheadoptionofUDHR,UNGeneralAssemblyalsoadoptedDeclarationonHuman HUMAN RIGHTSDEFENDERS administration assembly. country withregard tofreedom ofassociation? Evaluation byUNbodies:Havethe UNHumanRightsCommitteeorSpecialRapporteurscongratulated/condemned therespective standardscomply withinternational onhumanrights? Ifyes,does to thelegislationonassociations?Hasanewlawaffecting associationsbeendraftedbythenationalgovernment? introduced amendments New legislationin2007-2008:Hasanewlawonassociationsbeen drafted?/Hasthenationalgovernment In theWest Bank in theGazaStrip , thePA ordered thedissolutionoforganisationsconnectedwithHamas,whileHamasdefacto tooksimilarmeasures againstpro-Fatah groups. Europe, uses of ecided me of unds, and ngs. to so in e s it measures andfi nd remedies forthepresent violations. ofthe11SouthandEastMediterraneancountriestotakeappropriat Based ontheseindicators,weurgethenationalgovernments after ayear. Thereport callsforregular updates,andtheindicatorswillbeevenfurtherdevelopedfornext edition. We hopethatthesenewindicatorswillallowustoassessprogress andsetbacksinthearea ofFreedom ofAssociationinthere withoutanydistinction(redcolour) freedom ofassociationhasbeendeniedorseverelyrestrictedforeveryone orseverelyrestricteddeniedtotargetedgroups(orang (green colour);freedomofassociationhasbeenlimitedforeveryone Since September2007,freedomofassociationhasgenerallybeenrespectedandthecitizenshaveeffectivelyenjoyedthisfreedo Based ontheseadditionalindicators,adistinctionisdrawnbetweenthreegroups: - - - - - Regarding thefi ve criteriamentionedabove,theanalysisisbasedonfollowinglistofbasicprinciples: - 2008 Report 2007 Report Syria Libya Morocco Turkey Lebanon Israel Tunisia Palestinian Territories Jordan Algeria Egypt human rights?To whatextentisitpossibletocriticisethegovernment? Other elements:Isemergencylawinforce inthecountry?Doescounter-terrorism standards on lawcomplywithinternational standards?international been justifi ed withregard standards?/ tointernational Doestheauthorityresponsible fordissolvingassociationscomplywith Dissolution ofassociations:Between1September2007and2008,havegrounds forthedissolutionofassociations easily received funds/facedrefusal orstrictcontrol from theauthorities? Access toforeign funds:Between1September2007and2008,haveassociationswantingtoaccessforeign funds psychological harassment(includingrestrictions onmovement,butalsoarrests, etc.))? been free tocarryouttheiractivities/subjectedcampaignsofharassmentsbytheauthorities(materialdamages,physicalor Interference/campaign ofharassment:Between1September2007and2008,havemembersassociations obtained theirreceipt easily/facedrefusal ordelaysfrom authorities? Registration ofassociations:Between1September2007and2008,havegroups wantingtoestablishanassociation associations beenprevented/repressed bytheauthorities? Freedom toassemble:Between1September2007and2008,havemeetings/demonstrationsorganisedby Countries Presence ofindependent associations authorisation Prior islto Interference Dissolution Access toforeign funds elements Other e colour); gion m e

INTRODUCTION, INDICATORS AND GENERAL RECOMMENDATIONS INTRODUCTION, INDICATORS AND GENERAL RECOMMENDATIONS 14 RECOMMENDATIONS • • • • • • • • Take measurestoimplementarticle2oftheAssociationAgreements; allnecessary • We callupontheEuropeanUnionto: • • • We callupontheauthoritiesof11South andEastMediterraneancountriesto: to documenthumanrightsviolationsandprovidestrongsupportwhen necessary. Through theEUmissions,establishandmaintaincontactswithhuman rightsdefendersatriskintheEuroMedregionorder standards onhumanrights,especiallywithregardtofreedomofassociation andrespectofHumanRightsDefenders; Exert pressureonthe11SouthandEastMediterraneancountries toensuretheirfullcompliancewiththeinternational Ensure therespectofEUGuidelinesonhumanrightsdefenders with regardtofreedomofassociation; countries; well asinthediscussionsofamoretechnicalnaturewithinsub-committeescomprisedEUandMediterranean Give urgentprioritytofreedomofassociationinallpoliticalanddiplomaticdiscussionswiththegovernmentsEMP, as covered bytheActionPlansofEuropeanNeighbourhoodPolicy(ENP); thepartnercountries,takeconcretestepstoguaranteefreedomofassociationinimplementationallareas With actors; the ActionPlans’generalobjectivesintospecifi c actions,accordingtoasetagendaandwithpreviouslyagreed-upon Ensure thatprioritiesrelatedtofreedomofassociation,asidentified bytheENPActionPlans,areimplemented,translatin situation, aswellonconcreteandmeasurablecommitmentstofurtherimproveitspoliciesinthisfi eld. Condition anyfurtherprogressinitsrelationswiththepartnercountriesonrealandlastingimprovementshumanrights European Union’s institutionshavetobebasedonsuchprinciples; respect forhumanrightsandfundamentalfreedomstheruleoflaw”,thatallpoliciesactionsundertakenby according toArticle6oftheTreaty ontheEuropeanUnion,“TheUnionisfoundedprinciplesofliberty, democracy, Comply withitsownhumanrightscommitmentsinrelationstheMediterraneanpartnercountries,recallingthat, Committee onHumanRights. (article 21)andfreedomofassociation22),takeintoaccounttherelevantjurisprudenceUnitedNations Abide bytheInternationalCovenantonCivilandPoliticalRights,whichrecognisesrightstofreedomofassembly levels” international others, topromoteandstrivefortheprotectionrealisationofhumanrightsfundamentalfreedomsatnationalan December 1998,andparticularlyitsArticle1,whichprovidesthat Protect UniversallyRecognizedHumanRightsandFundamentalFreedoms,adoptedbytheUNGeneralAssemblyon9 Implement theDeclarationonRightsandResponsibilityofIndividuals,GroupsOrgansSocietytoPromote hastherighttofreedomofpeacefulassemblyandassociation” “Everyone Act inconformitywiththeletterandspiritofUniversalDeclarationHumanRights,article20whichstates , aswellthe5December2005ResolutionofAfricanUniononhumanrightsdefendersinAfrica; “Everyone hastheright,individuallyandinassociationwith “Everyone ; d g

Freedom of Association in Algeria

by Amine Sidhoum

RECOMMENDATIONS

The Algerian government is urged to:

1. With regard to the political situation and the general framework of democracy and human rights • End the state of emergency which has been in force for 16 years and is used to arbitrarily restrict enjoyment of freedoms of association and assembly; • Amend Articles 144 to 148 of the criminal code on the offense of defamation, as well as Article 46 of Law 06-01 of 27 February 2006, which criminalise statements critical of the criminal acts committed by the State in the 1990s; • Comply with the recommendations of the UN Human Rights Committee, which calls on the authorities to “respect and protect the activities of human rights organizations and human rights defenders. It should ensure that any restrictions imposed on the right of peaceful assembly and demonstration and on the registration of associations and the peaceful pursuit of their activities are compatible with articles 21 and 22 of the Covenant”.

2. With regard to the legislation and practice related to freedom of association • Amend Law No 90-31 of 1990 on association so that it conforms to and guarantees international standards on the right to association, particularly ensuring that: - Associations can be established by notiﬁ cation without the need for a prior license; - Jail terms for founders of an unapproved, suspended or dissolved association (art.45) are eliminated, as they are contrary to the spirit of the notiﬁ cation system; - Article 28 is amended to allow the acquisition of foreign donations without prior approval from the authorities - and associations can obtain funds allocated by the EU support programmes; - Effective judicial remedies can be assessed within a reasonable period in cases of the violation of the fundamental rights of members of associations and human rights defenders.

Introduction

POLITICAL AND LEGAL FRAMEWORK AND exercise of fundamental freedoms. It is a pretext for a number THE HUMAN RIGHTS SITUATION of restrictions that limit freedoms related to associations, in particular with the demonstration ban currently in force, and Freedom of association in Algeria is governed by Act No. 90- is widely invoked against human rights associations or against 31 of 1990, which provides for a formal freedom that is not those who denounce the current policy of reconciliation. On guaranteed in practice. The freedom to form an association and the other hand, meetings and demonstrations initiated by the freedom to engage in community activities are restricted, associations of the government (GONGOs) are authorised, if not to a certain extent, by the law itself and by administrative altogether encouraged. This demonstrates the extent to which manoeuvres. the state of emergency can be accommodated and is a tool The state of emergency, which has been illegally upheld in in the hands of the government, used to muzzle any type of Algeria for 16 years, does not promote the full and complete opposition.

15 Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRY REPORTS 16 2 1 and didnothavemuchofanimpactonsociety. complaining thatassociations’activitieslackedeffectiveness to actorforbreach oftheAssociationsAct.Hecontinuedby associations were prosecuted bytheadministrationforfailure submitted theirfi nancial report” the rule. maintained, andrestrictions ontherighttodemonstrateremain freedom inpursuingtheiractivities. Thestateofemergencyis no signifi cant, noticeableimprovement regarding associations’ Almost ayearaftertheserecommendations, there has been offi cial reportofactivities,asrequestedbythelaw” 95% oftheseassociationsinAlgeria associations tobearound 81,000.Headded,however, that Noureddine Yazid Zerhouni,estimatedthenumberofregistered In June2008,theMinisterofInteriorandLocalAuthorities,Mr association toappealagainstanyrefusalofregistration.” connection, theStatepartyshouldguaranteerightofany 90-07) of3April1990isinconformitywiththeCovenant.Inthis and 22oftheCovenantalsothatInformationAct(No. peaceful pursuitoftheiractivitiesarecompatiblewitharticles21 and demonstrationontheregistrationofassociations that anyrestrictionsimposedontherightofpeacefulassembly rights organizationsandhumandefenders.Itshouldensure The Statepartyshouldrespectandprotecttheactivitiesofhuman offi cials (Covenant,arts.9,21and22). and areoftensubjectedtoharassmentintimidationbyState their activitiesfreely, includingtheirrightofpeacefuldemonstration, organizations andhumanrightsdefendersarenotabletopursue Rights: CovenantonCivilandPolitical application oftheInternational submitted duringthereview ofAlgeriawithregard tothe the CFDA/FIDHshadowreport in November2007,following Rights Committee,published recommendations oftheHuman association. Itthusnegatesthe restrict thefreedom toforman although theyfulfi seeksto l thelegalcriteria,government authorities forillegallyrefusing toregister certainorganisations, Paradoxically, atatimewhere politicalfigures denouncethepublic the wilayastoimprovedailylifeofcitizens.” associations -thatarecommittedtoworkwiththecommunesand will workwithpublicauthorities: restrictive registration criteriainorder toselectassociationsthat work onareform project ofthe1990Actthatwillprovide more The government’s response tothisobservationhasbeen UNHumanRightsCommittee, fi nal observations, CCPR/C/DZA/CO/3/CRP.1, 1November 2007, n°25 MadjidMakedhi, “The Committee is concerned thatmanyhumanrights “The Committeeisconcerned “les dégâtsdelapolitique del’allégeance” , withoutspecifyingwhetherthese “The country needscredible “The country “have neversubmittedtheir in pursuingtheiractivities. freedom improvement regardingassociations’ there hasbeennosignifi Almost ayearaftertheserecommendations, , inEl Watan, 14June2008 1 and

“have never 2 to present theregistration receipt isnot,inpractice,alegal the mattertojudiciary, anassociationthatisnotinaposition authority hasnotissuedaregistration receipt withoutreferring an associationisdeemeddulyestablishedifthecompetent Despite theprovisions ofArticle 8oftheAct,according to which refusal hasnotbeenoffi cially notifi ed, theremedies are limited. refuse toacceptdeliveryof thefi le. Insuch caseswhere the submission oftheestablishmentfi le, inothercases theysimply cases, theauthoritiesdonotevenissuereceipt forthe association’s statutecomplieswithlegalrequirements. Incertain authorities referring thefi le tothejudiciaryruleonwhetheran of canbeillegallyrefused registration, i.e.withoutthepublic Associations workinginafi doesnotapprove eld thegovernment under instructionsfrom theirhierarchy. offinorms, government cials actonacasebybasisand/or In practice,andintheabsenceofclearuniformregulatory receipt. of thetimeperiodprovided fortheissuanceofregistration authority, theassociationisdeemeddulyestablishedatend the absenceofareferral tothejudiciarybyadministrative registration ofanassociationandcanonlyrefer thematterto of theAct,publicauthorityisnotcompetenttorefuse the of theassociationwithlegalprovisions. According toArticle8 days ofthedatesubmission,afterexaminingconformity document acknowledgingreceipt oftheapplicationwithin60 national associations).Thecompetentauthorityshouldissuea of localassociations)ortotheMinistryInterior(incase province where theassociationhasitsheadquarters(incase submission ofadeclarationestablishmenttothe Article 7statesthatanassociationisdulyestablishedafterthe prior authorisationfrom theStatetoestablishanassociation. declaratory system,thatistosayonedoesnotrequire on CivilandPoliticalRights,sincethe1990Actprovides a Covenant Declaration ofHumanRightsandtheInternational respect freedom ofassociationasguaranteedintheUniversal Review onFreedom ofAssociation.Intheory, theserules associations are thesameasthosedescribedinfirst EMHRN The conditionsfortheestablishmentandregistration of FORMATION OFASSOCIATIONS Part One cn, noticeable cant, day ithasbeenreferred to.In decide within30daysfrom the is illegal.Thetribunalmust that thenature oftheassociation competent courtifitconsiders administrative chamberofthe wilaya ofthe

opposed tothereconciliation policyhavebeenprohibited of thetextsapplyingCharter, humanrightsassociations 500,000 Dinars( punished bythreetofi ve yearsinprisonandafi ne of250,000to theimageofAlgeriainternationally, it,ortotarnish served shallbe or tounderminethegoodreputationofitsagentswhohonourably Democratic andPopularRepublicofAlgeria,toweakenthestate, the woundsofNationalTragedy toharmtheinstitutionsof “Anyone who,byspeech,writing,oranyotheract,usesexploits the CharterforPeaceandNationalReconciliationprovides that, Article 46ofOrdinance No.06-01of27February2006enacting practices oftheauthoritiesandcertainstateinstitutions. to report theactivitiesofassociationsthatdenounceillegal state institutionsandthejudiciary, donotencouragethemedia offence ofdefamationagainstthePresident oftheRepublic, Articles 144to148oftheCriminalCode,whichestablish Restrictions onfreedom ofexpression different restrictions that signifi cantly hampertheiractivities. emergency. Independentorganisationsare indeedsubjectedto banned forotherorganisationsonthegrounds ofthestate freedom ofassemblyandtherighttodemonstrate,whichare enjoy largeprivileges(residence, assistance,subventions,etc.), their supportforthegovernment’s policies.Theseorganisations state subventionsandalargefreedom ofactioninexchangefor Associations closeto,orevencreated by, enjoy thegovernment, LIFE OFASSOCIATIONS Part Two groups toactasanassociation. declaration oftheassociation,butratheranauthorisationfor registration receipt, whichdoesnotseemtobeproof ofthe associations. Onecanonlywonderaboutthevalueof term “unapproved” andpenalisestheactivitiesofunapproved 8, whichdescribeadeclaratoryprocess, Article45usesthe article hasledtomuchcontroversy. ContrarytoArticles7and or toonlyoneofthesetwopenalties” fi ne of50.000DAto100.000(between punished bythree(3)monthstotwo(2)yearsinprisonanda of anunapproved,suspendedordissolvedassociationshallbe dissolved associationorencouragesthemeetingofmembers administers orisactivewithinanunapproved,suspended Article 45oftheActprovides that apply forfunding.Inotherwords, itisnotdulyestablished. entity, sinceitcannotappearincourt,openabankaccountor € 2.800 to € 5.550).” Sincetheentryintoforce “Anyone whomanages, . Theambiguityofthis € 5 and 550 € .1 ) 1.110 had joinedtheteachersintheirprotest againsttheMinistryof strike since14July, thepolicebeatcitizensandactivistswho During agatheringinsupportofsubstituteteachersonhunger could beexpected. subsequent prosecution againstthearrested demonstrators later. Sincethepolicedraftedminutesoftheseinterrogations, people were arrested, interrogated andthenreleased afewhours technique autonome desprofesseursdel’enseignementsecondaireet Secondary andTechnical EducationTeachers ( Nouar Larbi,memberoftheNationalAutonomousCouncil Schools ofAlgeria( charged demonstrators.AnactivistoftheCouncilHigh while riotpolice,whohadbeencalledtotherescue, baton- banners andpushed,insultedassaultedthedemonstrators officers, caughtunprepared, intervenedaggressively toseizethe Police displayed bannersprotesting againstthegovernment. organised agatheringintheGrandePostesquare, where they disregarded thedemonstrationban,inforce since2001,and de sécurité unions. SincetheRepublicanSecurityUnits( withoutconsultingthetrade developed bythegovernment disagreement regarding thewagesreview plan,which hadbeen the PrimeMinister, AbdelazizBelkhadem,toinformhimoftheir autonome delafonctionpublique)requested ameetingwith Autonomous Inter-Union oftheCivilService(Intersyndicale On 15April2008,aftertwodaysofstrike,membersthe freedom ofassociation. any gatheringinapublicplace,ispretext fortherestriction of shows thatmaintainingthestateofemergency, whichprohibits in violationoftherighttostrikeanddemonstrate.Again,this by autonomoustradeunionsthatwere systematicallyrepressed The year2007-2008wasmarkedbyaseriesofstrikesorganised of assembly Restrictions ontherighttodemonstrateandfreedom are subjectedtothesamelaw. considerably weakenedechointhelocalmediasincejournalists are liabletoprosecution iftheydo.Inaddition,enjoya from expressing theirviewsonthehistoryofcountryand riot police. insulted andassaultedthedemonstratorswhile aggressively toseizethebannersandpushed, Police of , CNAPEST)were violentlyassaulted.Intotal,10 , URS)blockedthismeeting,thetradeunionists fi cers, caughtunprepared,intervened Conseil deslycéesd’Algérie Unités républicaines Conseil national , CLA)andMr 17

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRY REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRY REPORTS 18 pronounced againstMrSmaïn, butinreality, itconfi rmed the fi ne. At fi rst glance,thisnewdecisionreduced thesentence ( had sentencedhimtotwomonths’imprisonment,10,000DA decision ofthetribunalRelizane29December2001,which of MrSmaïntooneyearimprisonmentandconfi rmed thefi rst court annulledthedecisionthathadaggravatedsentence until lateatnight.Eventually, andaftermuchhesitation,the the beginningofsession,MrSmaïn’s casewaspostponed October 2007,whilealltheotherdecisionswere delivered at the sameday, itwaspostponedtothefollowingweek.On27 referred. Thoughtheverdict wassupposedtobedelivered on Relizane, nowdifferently composed,towhichthecase was On 20October2007,MrSmaïnappeared before thecourtof annulled forviolationofthelawandcontradictiongrounds. Court ofCassation.ThedecisionthecourtRelizanewas and a5,000DA( imprisonment, 30,000DA( court ofRelizaneaggravatedMrSmaïn’s sentenceto“1year” deterrent andthreatening presence ofsecurityforces), the hearing underintensepressure (accessforbiddentothe public, ( of compensationtotalling10,000DA( Mr Smaïnwassentencedtotwomonthsinprison,payment of Relizane.On29December2001,afterahigh-securitytrial, insults, andmaliciousfalseaccusationsbefore thetribunal partisans tookcivilactionagainstMrSmaïnfordefamation, militia commandedbytheinfamousFergane.Ferganeandhis containing bonesofpersonsabductedbymembersthe In 2000,hisresearch ledhimtothediscoveryofmassgraves and isinvestigatingforforced disappearancecasesinAlgeria. Défense desDroits del’Homme),ledbyHocineZehouane, for theDefenceofHumanRights(LigueAlgériennepourla Mr MohamedSmaïnisaboard memberoftheAlgerianLeague human rightsviolations. as soontheyare notinlinewiththeregime oriftheydenounce intimidate activistsandforce themtostoporlimittheiractivities To Algerianlawsare instrumentalisedto serve thegovernment, activities Harassment ofhumanrightsdefendersduetotheir LADDH-CCDR) andautonomoustradeunions(CLA-SNAPAP). at thisgathering,aswere representatives ofassociations(RAJ- who supportedthemovementsinceitsbeginning,were present released. Representatives ofpoliticalparties(FFS-MDS-PST), were arrested, interrogated atthepolicestationandthen confi scated theircamerasandmobilephones.Three activists whohadcometocovertheeventand they beatthejournalists Education. Onthisoccasion,thepolicecrossed newboundaries: € € 110) compensationforeachplaintiff anda5,000DA( 55) fi ne. MrSmaïnappealedthedecisionand,atendofa € 55) fi ne. Anappealhasbeensubmittedtothe € 330) compensationforeachplaintiff € 110) andtoa5,000DA € 55) of associations. excellent opportunitytomonitorandinfl uence theexpenditures implementation ofprojects, thissystemgivestheauthoritiesan association intheexpenditure ofthesefundsandinthe on theother. Underthepretext ofsupportingthebenefi ciary Solidarity ontheonehand,andbenefi ciary association “partnerships” betweentheforeign funderandtheMinistryof associations consistsofenteringintoagreements knownas Another waytocontrol the foreign resources ofAlgerian reducing associations’incomesandofrestricting theiractivities. responsible publicauthority. Thisprovision constitutesawayof abroad canonlybecollectedafterprioragreement from the Article 28ofActNo.90-311990provides thatfundingfrom have easyaccesstostatesubsidies. exception ofassociationsclosetotheestablishment)donot As regards totheirfunding,Algerianassociations(withthe the Djazairouna associationhadhelpedtoorganise. seminar heldinBrussels(afteritwasbannedAlgiers),which following herparticipationinthe“Truth, PeaceandConciliation” A dismissalprocedure hadnotablybeenstartedagainsther had previously beenharassedforhercommunityactivities. in atrainingontransitionaljusticeRabat).MrsKheddar partnership withthe“SOSdisparu(e)sAssociation,”participation reconciliation andtransitionaljusticeintheDjazairouna offi ces in TV newsinMarch 2008,organisation ofaworkshoponnational several publiceventson“nationalreconciliation” (onAlJazeera and havecreated anembezzlementfile againsther. Thisisdueto discredit hervis-à-visco-workersandAlgeriancivilsociety, targeted MrsKheddarinadefamationcampaignattemptingto her unabletoappealagainstthem.Theauthoritieshavealso informed aboutthedecisionsofprefectorial order, whichleft had occupiedformore than12years.MrsKheddarneverwas and shewasordered toleavetheoffi cial accommodationshe former duties,althoughherwageshavebeendrasticallyreduced cease any“obtrusiveactivity”.Shecontinuestoperformher - asadministratoruntilfurthernotice,provided thatshewould Blida Wali. MrsKheddarwasallowedtokeephersecondpost was confi rmed on30May2008byanunnotifi ed decisionofthe wages andadvantagesthispositionentailed.Thisinformation servant attheBlidaPrefecture andwasnolongerentitledtothe she hadjustbeenrelieved ofherpositionasahigh-levelcivil justice inRabat,Morocco, shewasunoffi cially informedthat association. Comingbackfrom atrainingsessionontransitional Another exampleisCherifaKheddar, President oftheDjazairouna of humanrightsdefenders. humanity, andevenworse,thepersecutioncondemnation intolerable impunitythatcoversperpetratorsofcrimesagainst Freedom of Association in Egypt

by Essam El-Din Mohamed Hassan

RECOMMENDATIONS

The Egyptian government is urged to:

1. With regard to the political situation and the general framework of democracy and human rights • End the state of emergency enforced since 1981; • Ensure that any legislation aiming at fi ghting terrorism respects human rights standards. Such legislation should not prescribe any restrictions on peaceful activities. The pretext of fi ghting terrorism should not be used to deprive persons of the right to appear before common law judges; • Ensure that members of associations can benefi t from freedom of expression.

2. With regard to the legislation and practice related to freedom of association • Amend Law No. 84/2002 on NGOs in order to comply with international standards on the right to association, particularly ensuring that: - Associations can be established by simple notifi cation without a need for prior license; - General assemblies have the sole jurisdiction of setting association policies, bylaws and forming/dismissing boards of directors. The administrative agencies should not undermine or interfere with this right; - The law recognises the right of associations to form thematic and regional unions, as well as their right to join networks or alliances for common purposes, nationally, regionally and internationally; - The law recognises the right of associations to select their fi elds of activity freely; - Associations may only be dissolved or blocked by fi nal judgments after all other legal measures have been exhausted; - Associations can hold meetings inside and outside their headquarters without any interference; - Associations can receive the funds necessary for fi nancing their activities without prior license, and subject only to notifi cation, as long as all foreign exchange and customs laws have been satisfi ed.

Introduction

POLITICAL AND LEGAL FRAMEWORKRKR ANDN Inn spitespit of ofﬁﬁ cialall pledgesple g s to end ththe sstate of emergency, THE HUMAN RIGHTS SITUATION whichwhich hashas beenbee in forc fforcee sinces 11981, thehe Parliament approved the government’s request in May 202008 to extend the state of Since the adoption of the latest constitutional reforms in April emergency for another two years. The fact that the government 2007, the state has abandoned its relative tolerance vis-à-vis had not yet completed the draft anti-terrorism law, which critics, the independent media and various forms of political and would replace the state of emergency, was used to justify the social activism. Indeed, the authorities have been more eager to proposal. employ counter-terrorism legislation to undermine independent expression and peaceful assembly, and to increase pressure on However, the proposed anti-terrorism law would in effect civil society and NGOs. integrate the exceptional powers the security agencies currently

19 Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRY REPORTS 20 3 2 1 trative decisiontodissolve the Association, issuedon4September2007. or anyotherlaw, ifcommittedbyusingterroristmeans. (explicit orimplicit)tocommitterroristacts. Article IIpaved thewayforuseofexceptionalpowers, byvirtueoft the Constitution, thelawsandregulations, orthathindersthepublicauthoritiesfromperformingtheirduties. Article VI of for therelevant administrative judges’decisionregarding the associations shouldbeexecutedpromptly, withoutwaiting The newamendmentprescribes thatdecisionstodissolve Article 97oftheExecutiveRegulationstoAssociationsLaw. introduction on31July2007 ofasubstantialamendmentto has becomeevengreater sincetheMinistryofSocialSolidarity’s that theadministrativeauthority’s powertodissolveassociations A particularlyworryingaspectofthelawunderconsiderationis of SocialSolidarity, awidescopeforarbitraryintervention. administrative agenciesoftheexecutiveauthority, i.e.theMinistry with theprovisions ofLaw No. 84/2002.Thislawgivesthe Regulation ofassociationsandNGOscontinuesinaccordance discrimination onthebasisofreligion orbelief. interpret thisprovision torestrict associationsthatfi ght against Constitution andthelaw. Furthermore, itwouldbeeasyto reform constituteacalltounderminetheprovisions ofthe agencies decidethatdemandsforconstitutionalandlegislative movements andhumanrightsorganisations,ifthesecurity the righttopeacefulassembly, andtoharasssocialgroups, This provision caneasilybeinstrumentalisedsoastocriminalise its functions,orinjuringnationalunity.” institutionsorpublicauthoritiesfrom exercisingthe government the provisions oftheConstitutionorlawspreventing oneof gang thepurposeofwhichistocallbyanymeansforthwarting or directs anassociationorbodyorganizationgroup or prison sentencefor“whosoeverestablishes,founds,organizes noteworthy, asitmandatesa the draftlawisespecially In thiscontext,Article10of assembly andassociation. forms ofexpression, peaceful powers mightbeusedagainstpoliticalenemiesandvarious vague definition ofterrorism andterrorist acts, andthePresident’s ever more hasbeenadoptinga dangerous asthegovernment created bytheanti-terrorism law. Thesepowershavebecome extrajudicial militarycourtsortoanyspecialthatmightbe of theRepublic,whichallowhimtorefer suspectedterrorists to amendments, confi rms theexceptionalpowersofPresident terrorism. ThisArticle,introduced withthelatestConstitutional Constitutional guaranteesinthenameoffi ght against Constitution, whichallowsthesecurityagenciestodisregard The authoritiespavedthewayforthiswithArticle179of temporary) stateofemergencywouldbecomepermanent. hold undertheemergencylaw, sothatthe(theoretically Basedonthedefence memorandumpresentedbythe Association ofLegal Assistance for HumanRightstothe Administrative Court The provisions ofthedraftlawwerepublishedin In Article I, thedraftlawdefi nes aterroristactasanythreateningorterrorisingthataimstodisturb the publicorde 1 enjoyed bytheseagencies. an extentthatfarexceedsthepowerslegally have increasedpressureonassociationsto It appearsthattheadministrativeagencies ElMasry El ElMasry Youm 2 newspaper on 20 February 2008.newspaper on20February 3. 2. 1. that waspubliclyavailabletowards theendof2008: These fearsseemtobecorroborated bythelimitedinformation association. amendments wouldimposefurtherrestrictions onfreedom of repeatedly thatthese statedsincemid-2007)raiseconcerns since itsinception,thegovernment’s planstoamendit(as administrative agencies,evenwhiletheAdministrativeCourtwas assets andfundswere distributedtoNGOsspecifi ed bythe the Offi cial Gazette.Theassociationwasdissolvedandallits amendment totheExecutiveRegulationswaspublishedin to dissolvetheassociationwasissuedonlyfourdaysafter been activeinfi ghting againsttorture for13years.Adecision Association forHumanRightsandLegalAid(AHRLA),whichhas introduced specifi cally toallowforthedissolutionof Some havesuggestedthatthissignifi cant amendmentwas was challengedduringagraceperiodspecifi ed bylaw. to dissolveanygivenassociationhadbehaltedifthedecision legitimacy ofthedissolution.Priortoamendment,procedures council. chairman oftheboard and one third ofthemembers the President oftheRepublic isinchargeofappointingthe Federation’s board ofdirectors comprises31members,and imposed bylaw. Inaccordance withthecurrent law, the not voluntarilyestablishedbyassociations,butthatitwas or generalassemblies.ItshouldbenotedthattheGFNFwas to informtheFederationofdecisionstakenbytheirboards consulted. Theproposed amendments require associations agencies inseveralareas, where theFederationnowhastobe converting itintoarepresentative bodyoftheadministrative the GeneralFederationofNGOsandFoundations(GFNF), The proposed amendments grantadditionalpowersto to ahandfuloffi elds only. associations tochoosetheirfi eld ofworkandtorestrict them Theamendmentsshowatendencytolimittherightof as non-profi t companies. where NGOsestablishedundertheCivilLaware referred to emerged outsidetheframeworkofAssociationsLaw, i.e. attitude towards formsoflegalregulation ofNGOsthathave The amendmentswillentailtheadoptionofamore restrictive his law, foranyfelonypunishable bythePenalCode the draftlawamendedcrimeofincitement r, hindertheenforcementofprovisions arbitrary dissolutiondecision. association hadfi led againstthe still consideringthechallenge Law hasbeenwidelycriticised Although thecurrent Associations in Cairo, challenging theadminis- 3

• The followingcasesare prominent examples: human rights. whether tolegalisegroups workinginfi elds closelyrelated to and theauthoritiesinseveralcasesactedarbitrarilydeciding to bethecasefrom September2007through September2008, represented bytheMinistryofSocialSolidarity. Thiscontinued Associations havetoregister withtheexecutiveauthority ASSOCIATIONS FORMATION ANDDISSOLUTIONOF Part One 4. • 6 that pastmembersof theboardofdirectorswereaccusedthese violations, ratherthantheboard membersatthetimewhenth two-month periodstipulatedbytheLaw(which didnotspecifywhetherfailuretorespondwithinthesetwomonthsmeantapproval by theadministrativeagenciesasstipulated bytheLaw. The 5 4 Formoreinformation, see The dissolution decisionwastakenonthegroundsoffi nancial violations, basedonthefactthatassociation receivedfor Forfurtherdetails, see: NGOCampaign inDefenseof “Freedom of Association” - The CivilSocietyinEgypt, SecondReporton V delayed executionofthecourtorder forthree more months. the CTUWS,inaccordance withthelaw. However, theMinistry administrative decisionandcallingontheMinistrytoregister Court ruledinCTUWS’s favour, haltingimplementation ofthe CTUWS appealedand,on30March 2008,theAdministrative 2007 andrejected theapplication,citingsecurityreasons. the MinistryofSocialSolidarityissuedadecisioninAugust Centre byonceagainbeginningtheregistration process, but Hamady andHelwan.CTUWSoffi cials triedtore-open the to closetheCTUWSoffi ces inEl-MahalaEl-Kobra,Nagaa Law. InMarch andApril2007,theauthoritiesissueddecisions unsuccessfully triedtoregister inaccordance withtheNGOs this statusuntilLawNo.84/2002wasissued.TheCTUWS and pursueditsactivitiesdefendedlabourrightsunder was establishedasanon-profi tcivilcompanyinthelate1980s The Centre forTrade UnionandWorkers’ Services(CTUWS) In January2008,“EgyptiansagainstDiscriminationinOne closed membership. associations andwouldprohibit associationsfrom havinga The amendmentswouldallowtheauthoritiestoinfi ltrate association tocontinueitsactivities. Court inEgypt,on26October2008,allowedthe However, adecisionfromtheAdministrative regarding theappeal 2007, beforeanydecisioncouldbereached by anadministrativedecisioninearlySeptember Association forHumanRightsandLegalAid(AHRLA) Associations Lawallowedforthedissolutionof Article 97oftheExecutiveRegulationsto http://www.euromedrights.net/pages/511/news/focus/62462 . fi led bytheAssociation. Association had, however, appliedforapprovalandtheadministrat 4 ACTIVITIES INTERVENTIONS INASSOCIATION THEADMINISTRATIVE AUTHORITIES’ Part Two • • A third newsletterdrew associations’attentiontothe fact that (using thepretext ofensuring equalemploymentopportunities). activities oftherecruitment committeesandsupervisethem so thattheagencycanrevise procedures andfollowuponthe the administrativeagencypriortoannouncinganyvacancies, recruiting forfundedprojects, associationsare obligedtonotify allassociationsintoaffiturning liates ofthe Department. When in Menyawasdistributedtoassociations2007withtheaimof meeting. Anotherbrochure from theSocialSolidarityDepartment with, otherassociations,irrespective ofthepurpose told nottoacceptanyinvitationsfrom, ortoholdanymeetings consultation withtheDepartment.Moreover, associationswere to discloseanydataorinformationagencywithoutprior distributed abulletintoassociations,whichinstructedthemnot In February2007,theSocialSolidarityDepartmentinMenya powers legallyenjoyedbytheseagencies. pressure onassociationstoanextentthatfarexceeds the It appearsthattheadministrativeagencieshaveincreased appeal fi led bytheassociation. 2007, before anydecisioncouldbereached regarding the Aid (AHRLA)byanadministrativedecisioninearlySeptember dissolution oftheAssociationforHumanRightsandLegal Executive RegulationstotheAssociationsLawallowedfor As previously mentioned,theamendmenttoArticle97of obtaining alicencefrom theMinistryofSocialSolidarity. against ReligiousDiscriminationcontinuestofacediffi culties in For thesamereasons asabove,theAssociationofCitizens June 2008. began toconsiderthechallengefi led againstthedecisionin incite discriminationamongcitizens.TheAdministrativeCourt from includinganythingthatmightthreaten nationalunityor 84/2002. ThisArticleprohibits anassociation’s objectives in contradictionwiththeprovisions ofArticle11LawNo. rejection onthegrounds thattheinstitution’s objectiveswere registration. Theadministrativeauthoritiesbasedtheir Nation”, ananti-discriminationassociation,wasdenied the associationtocontinueitsactivities. Administrative CourtinEgypt,on26October2008,allowed ive agencyhadnotrespondedwithinthe eign fundsin2005/06withoutapproval orrejection). Itisalsoworthmentioning iolations, July2008. 5 e dissolutiondecision wasissued. However, adecisionbythe 6

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRY REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRY REPORTS 22 under thesupervisionofKafrEl-Dawar’s ChiefofInvestigations. detainees inKafrEl-Dawar, whoallegedtheyhadbeen tortured was accompanyingahumanrightsdelegationonvisittofour a victimofphysicalaggression. Theassaultoccurred while she andTorture, ofViolence of Victims DrMagdaAdly, recently was assault. TheheadofEl-NadeemCenterfortheRehabilitation Human rightsdefendershavebeensubjectedtophysical Harassment ofHumanRightsDefenders any negligenceinthisrespect wouldbedealtwithveryharshly. irrespective oftheirpurpose.Theassociationswerethat warned Security Agencypriortosendingoutoracceptinganyinvitations, associations were alsotoldtoseektheadviceofNational or Arabstateswithoutseekingsecurityapproval fi rst. The which toldthemtheycouldnotacceptinvitationsfrom foreign In July2008,theassociationsinGreater Cairo received aletter services. was heldinmid-May2008)duetopressure from thesecurity apologised fornothostingthethird dayoftheworkshop(which Covenant onCivilandPoliticalRights.Thehotelmanagement which wouldhavedebatedmeanstoenforce theInternational couldnotcompleteaseminarinAlexandria, Profession, inturn, The ArabCenterfortheIndependenceofJudiciaryandLegal the organisationofrecent protests. labour unions,someofwhomhadsignifi cantly contributedto would havecommendedwomenleadersinthesyndicatesand Women’s Day. Thiswasmainlyduetothefactthatevent annual celebrationofEgyptianWomen’s DayandInternational was subjectedtopressure andsecuritythreats tocancelthe Hawamdeya, Giza,inApril2008.TheNewWoman Foundation organised bytheNewWoman Foundationandwastobeheldin including oneontheamendmentstoChildLaw, whichwas The securityagenciesalsocancelledanumberofseminars, him. and beingthreatened withhavingevidencefabricatedagainst was forced toresign afterbeingsubjectedtosevere pressure to theregistration oftheassociation.Thechairmanboard upon therequest ofthesecurityagencies,afewmonthsprior Dakahleya villagestodismisstheheadofitsboard ofdirectors the Freedom ofSocialDevelopmentAssociationinonethe Freedom ofAssociation,theadministrativeagenciesasked According tothesecondreport oftheNGOCampaignfor Intervention bytheSecurityServices effective untilapproved bytheadministrativeagencies. any decisionstakenbytheirboards ofdirectors wouldnotbe of theFreedom Housedelegation, wasdeniedentryandheld Egypt, MsWafaa BinHajOmar, ofTunisian originandamember While someFreedom House memberswere allowedtoenter Developing LegalAwareness andfundedbyFreedom House. rights activistsorganisedbytheEgyptianAssociationfor In June,theauthoritiesobstructedatrainingeventforhuman of participatingNGOs. requested thatitbeexcludedfromEgyptian government thelist EIPR wasnominatedtoparticipateinthemeeting,but General Assemblyhigh-levelmeetingonHIV/AIDSinNewYork. (EIPR) wasprevented from takingpartinaUnited Nations On 10-11June2008,theEgyptianInitiativeforPersonalRights International Meetings Freedom ofMovement:RestrictingParticipationin 27 February2008,revoking therulingagainsthim. Party. MrAbbasappealed,andafi nal judgment wasissuedon against oneofthemembersrulingNationalDemocratic the newsletterissuedbyCentre includedlibelandslander year withaone-yearprisonsentencefollowingallegationsthat Workers’ Services(CTUWS),KamalAbbas,wasthreatened last Similarly, theSecretary GeneraloftheCentre forTrade Unionand to haltexecutionofthepunishment. two yearsinprisonandabailofEGP10,000(aboutEUR1,400) Egypt conditionalondemocraticreform. Hewassentencedto calls ontheUSadministrationtomakeUSAIDprogramme sin newspapers, onthedeterioratingfreedoms inEgypt,andonhis These chargeswere basedonhisopinions,publishedinUS damaging Egypt’s reputation andharmingnationalinterests. Center forDevelopmentStudies.MrIbrahimwasconvictedof activist SaadEddinIbrahim,theDirector oftheIbnKhaldun year wastherulinginearlyAugust2008againstprominent as well.Amongthemostsignifi cant casesinthiscontext this circulation ofinformationconstrainhumanrightsdefenders Legal restrictions onthefreedom ofexpression andthe investigation oftheincident,on30April2008. when questionedbytheProsecution, butwasarrested, pending from theheadofinvestigations.Hechangedhisstatement man, whoacknowledgedhehadattackedherfollowingorders shoulder. Someofthosepresent managedtoapprehend the head wasbleedingandshesustainedatwo-partfracture toher and seizedherbag,causingtoloseconsciousness.Her she leftthecourthouse,amanincivilianclothingassaultedher these men,whowere accusedofsubversiveactivities.When presented thephotostojudgeduringcourthearingof of torture andshowedthevictims’blood-stainedclothes.She Adly hadphotosinherbagthatdocumentedphysicalevidence the judiciaryallowsforvariousloopholesthatMinistryof there are independentjudgesinEgypt,theorganisationof interventions hinderingassociationactivities.However, although regarding establishmentprocedures, dissolution orother court oftheStateCouncil.Suchchallengescanbefi led challenge administrativedecisionsbefore theadministrative The AssociationsLawtheoretically allowsallassociationsto Fair Trials -andthePossibilityofJudicialRedress administrative agencies. from takinglegalactiontoputanendthearbitrarinessof that theseproblems willberesolved overtime.Thus,theyrefrain they willescapefurtherpressure from theadministrationand approval. Theyhopethat,bydoingso, obtaining government prefer nottopubliclydisclosethediffi culties theyencounter in been barred from receiving funding,sincetheorganisations fi les. However, there isnodatatoprove thatassociationshave administrative authoritiesandonreview ofprevious projects’ fi nancial andadministrativeinspectionoftheassociationsby foreign fundsfornewprojects are usuallyconditionalupon from sixtoeightmonths.Decisionsregarding applicationsfor However, inreality, theprocess ofreceiving approval takes two monthsfrom thedateof applicationbytheassociations. unless approval isgivenbytheMinisterofSocialSolidaritywithin The lawprohibits associationsfrom receiving anyforeign funds Agency Foreign Funding-ThePositionoftheAdministrative their countryandtriggeranimosityattheUnitedNations.” issues toreceive dollars,evenifinreturntheymartheimageof violation ofthefreedom ofthepress, militarycourtsandother supportanduseoldstoriesabouttorture,of seekingexternal Rights. Thewriterstatedthat“theseNGOsdevelopedthenotion regarding Egypt’s membershipintheUNCouncilonHuman magazine, whichcommentedonsomeNGOs’observations is anarticlepublishedin rights NGOs,castingdoubtontheirpatriotism.Amajorexample constantly launchnewdefamationcampaignsagainsthuman newspapers thathaveclosetiestothesecurityagencies newspapersandprivate newspapers. Certaingovernment rights NGOs,whichhasnotbeenmatchedbythestate-led and satellitechannels’coverageoftheactivitieshuman There hasbeenageneralincrease inindependentnewspapers’ The Press andNGORelations not havearepresentative offi ce inCairo. justifi ed cancellingtheeventbyarguingthatFreedom Housedid at theCairo airportforalmost14hours.Thesecurityagencies Roz Al-Yousef , apro-government courts. independent. However, theycanalsobereferred toexceptional right toappearbefore acivilcourt,whosejudgesare relatively law orthenewdraftanti-terrorism lawthatdeniesactiviststhe their opinionsandstatements.There isnothingintheemergency are unlikelytoreceive afairtrialwhentheyare prosecuted for oppositionmembersandhumanrightsadvocates Journalists, Supreme ConstitutionalCourt,aswellthePublicProsecutor. Council, theChiefJusticesofCourtsCassationand President oftheRepublicappointsHeadState Justice canusetointerveneintheaffairs ofthejudiciary. The 23

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

Freedom of Association in Israel

by Rina Rosenberg

RECOMMENDATIONS

The Israeli government is urged to:

1. With regard to the political situation and the general framework of democracy and human rights • Cease using the Emergency (Defense) Regulations [EDR] - 1945 to close down NGOs, without due process of law; • Abolish the Prevention of Terrorism Ordinance - 1948, pursuant to which the government may declare any organisation as a “terrorist organisation” without relying on clear criteria as prescribed by express legislation; Reform the Law for the Prohibition of Terror Funding - 2005 as it ignores fundamental principles of criminal law (such as the requirement of “intent”, since the law provides that “to compensate for terror acts” includes the situation in which the recipient of the funds did not commit any terror act nor did he intend to do so).

2. With regard to the legislation and practice related to freedom of association • Ensure that the period of time between fi ling an application for registration of an association and the receipt of the certifi cate of association is reasonable; • Ensure the freedom of movement of members of associations; • Repeal Amendment 10 to the Companies Law enacted in 2007, which strengthens the Registrar’s authority to approve or disapprove a change in the aims of public benefi t companies and NGOs, as it constitutes undue regulation of the decision- making power of the non-profi t sector; • Provide greater public access to information and transparency on the work of the Registrar by making it available on his website and including statistics on the current number of NGOs, any dissolution proceedings initiated against NGOs and the reasons for such proceedings, new legislation affecting NGOs, etc.

Introduction

POLITICAL AND LEGAL FRAMEWORK AND search for the number of organisations closed down in the last THE HUMAN RIGHTS SITUATION year, for example, or for what reasons.

Since the Registrar of Associations (the “Registrar”) in Israel As of 2002, the annual expenditures of NGOs reached US $14 was established in 1981, around 49,000 applications to register billion, or roughly 13.3% of the country’s GDP, while employment 3 non-governmental organisations (NGOs) have been submitted.1 in the sector amounted to almost 11% of the total workforce. According to the Israeli Center for Third Sector Research, In the Hopkins Project’s comparisons between 22 countries, around 23,650 NGOs were active in Israel as of 2005.2 While Israel ranked fourth (behind Holland, Ireland and Belgium) in the website of the Registrar lists information on each registered the relative size of its Third Sector within the larger economy. NGO by name or registration number, no data is available on Israel’s Third Sector works predominantly in four ﬁ elds: religion, the total number of registered operating NGOs in Israel today. culture and education, education and research, and welfare and Further, there is no possibility on the Registrar’s website to philanthropy. Public funding from the government was the Third

1 See: the website of the Registrar of Associations: www.justice.gov.il/MOJHeb/RashamAmutot/odot.htm (Hebrew). 2 «The Israeli Third Sector at a Glance,» The Israeli Center for Third Sector Research, Ben Gurion University of the Negev, March 2007. Available at: http://web.bgu.ac.il/NR/rdonlyres/BA858A30-8095-4140-B09E-DED534B2583A/27847/ataglance_4.pdf 3 Ibid.

25 Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRY REPORTS 26 http://www.pmo.gov.il/PMOEng/Communication/Spokesman/2008/02/spokemigzar240208.htm also: «Government Approves PMOPolicy onRelationsbetweenSectorsinIsrael,» PrimeMinister’s Offi ce PressRelease, 24Februa 6 Negev, 2006(Hebrew). 5 4 Regulations -1945whichaimtoprevent theestablishmentor of Terrorism Ordinance -1948,andtheDefense(Emergency) on theProhibition ofTerror Funding-2005andthePrevention second typeofrestriction involves criminallawssuchastheLaw of Associations-1980andtheCompaniesLaw1999.The corporations, andcooperativeassociations,suchastheLaw in statutesthatregulate theformationandoperationofNGOs, laws restrict theexercise ofthisright.Thefi rst typeisfound association asafundamentalright,three typesofstatutory While theIsraeliSupreme Courthasrecognised freedom of the establishmentandfunctioningofNGOsinIsrael. The LawofAssociations-1980isthemainstatutethatgoverns binding unlesstheyare incorporatedintodomesticlaw. Under Israelilaw, humanrights covenantsare not international of freedom ofassociation. Thus, Israelhasnolawthatconstitutionallyguaranteestheright of freedom ofexpression ortherightoffreedom ofassociation. rights bysomeIsraelilegalscholars,donotenumeratetheright civil liberties.However, theseBasicLaws,considered aminibillof the fi rst time,contained“constitution-like”protections forsome Liberty, andTheBasicLaw:Freedom ofOccupation-which,for two importantBasicLaws-TheLaw:HumanDignityand delineate theseparationofpowers.In1992,Knessetpassed parliament (theKnesset)enactedaseriesofBasicLawsto Over theyears,Israeli constitution orabillofrights. Israel lacksaformalwritten persuasive authority. not beenincorporatedintoIsraelidomesticlaw, andisthusonly protects therighttofreedom ofassociation.TheICCPRhas and PoliticalRights(ICCPR)in1991;Article22oftheICCPR In particular, Israelratifi CovenantonCivil ed theInternational conventions, whichguaranteetherighttofreedom ofassociation. Israel hasratifi humanrights ed allofthemajorinternational LEGISLATION Part One Sector’s mainrevenue source (52%)in2002. sector’s funding. billion peryearandare responsible for19%ofthenon-profi t businesses, especiallyfrom abroad, amounttoaround US$1. to thesefundsforallNGOs.Donationsfrom individualsand written standards orcriteriaare inplacetoensure equalaccess See: The PrimeMinister’s Offi ce, «TheCivilSocietyandthe PrivateSector: Partnership, Empowermentand Transparency.» Polic See: «TheRoleofPhilanthropicFoundationsandtheirImpactontheCivilSociety inIsrael,» The IsraeliCenterfor Third Sec Ibid. 5 There are noGONGOsinIsrael. non-profi government presenteditspolicyregardingthe 2008,forthefi In February 4 However, noclear tsector. exempt from thetaxforyears. for NGOs),includingprivatesectorsbusinesses,hadbeen salaries totheIncomeTax Authority;allotheremployers(except of thelaw, NGOswere required topaya4%taxonemployees’ discriminatory Employers’Tax onNGOs. came intoeffect on1January2008andwhichcancelledthe alsoreiterated theenactmentofanewlawthat The government accountable, professional, and law-abidingnon-profi t sector. emphasisedtheneedforanindependent, The government • • • • will: this decision,itwasdeterminedthatthegovernment presented itspolicyregarding thenon-profi t sector. In February2008,forthefi rst time,theIsraeligovernment and hadtoallowthecompanyregister. the Registrarhadexceededhispowerindenyingpermission legislative authorisation;inthisspecifi c case,thecourtruledthat consider securityreasons asabasisforhisdecisiontorefuse thus theRegistrarforCompaniesdidnothaveauthorityto of thestate”wasnotanexplicitlystatedpurposeinlaw, and 1964. Inthiscase,theSupreme Courtdecidedthatthe“security to obtainpermissionregister theircompany, “El-Ard Ltd.”in group in1960,whentheyappliedtotheRegistrarofCompanies to therightoffreedom ofassociationwasbrought byanArab Ha’am, delivered in1953.Thefi rst casewhichrelated directly right offreedom ofexpression asafundamentalrightwasKol The landmarkcaseinIsraelilegalhistorywhichsetforththe their profession (e.g.,theBarAssociationforlawyers). professionals belongtosuchanassociationinorder topractice to formprofessional associationsortherequirement thatcertain third typeinvolvesdirect orindirect restrictions onthefreedom be asecurityriskortoconstituteterrorist organisation).The activity of“illegalassociations”(namelythosegroups deemedto year) andproviding taxbenefi ts. by increasing themaximumdonationlimit(toUS$5millionper Encourage businessestodonatenon-profi t organisations organisations; Supervise andregulate socialservicesprovided bynon-profi t profi t sectorintheprocess ofpolicyplanning; Hold roundtable forumstoincrease consultationwiththenon- organisations inoperatingsocialservices; social servicesandincrease theinvolvementofnon-profi t tenderstooperate Formulate socialcriteriaforgovernment rst time,theIsraeli tor Research, Ben Gurion Universityofthe could onlybelimitedbyexpress was afundamentalrightwhich right tofreedom ofassociation Supreme Courtruledthatthe to register thecompany. The y paper, 2008(Hebrew);see February ry 2008,ry availableat: 7 Priortothepassage 6 Pursuantto a foreign politicalentity”. 11 totheLawofAssociations-1980entitled“Donationfrom On 15January2008,theKnessetpassedAmendmentNo. http://cmsprod.bgu.ac.il/NR/rdonlyres/9429631C-F4EA-41AA-B7FA-B679646F94BA/0/newsletter28.pdf of theNegev, Newsletter, No. 28, 2008, February availableat: the donation;c)goalorpurposeofandd) fi nancial statement:“a)theidentityofdonor; b)thesumof new law, ifanNGOreceives thesedonations,itwillnoteinits NIS 20,000received from foreign politicalentities.Underthe reporting requirements andobligationsonNGOsforsumsover or thePA. Theamendmentimposesnewandmore detailed established bystatuteofonethebodiesaforeign country countries, thePalestinianAuthority(PA), andacorporation entity” asincludingaforeign countryorunionofforeign stance isnotcorrect andshould notbetolerated.” donations, andtherefore thestatehastosupervisethem. This decision-makers inthenon-profi t sectortomakeproper useof a changeinmissionimpliesthattheparliamentdoesn’t trust be justifi ed. Theneedtoapplyforapproval oftheregulator for Registrars’ authorityinthecaseofachangemissioncannot Israeli CivicLeadershipAssociation,“Thestrengthening ofthe Adv. OphirKatz,anexpertinnon-profi t lawandthechairof report inadditiontotheannualfi nancial report. According to non-profi t associationswillberequired tosubmitanexecutive requirements, statingthatbothpublicbenefi t companiesand demands increased accountability;itaddedadditionalreporting further entrenched theregistrar’s authority. Second,thenewlaw already existedintheLawofAssociations-1980,newlaw in missionofpublicbenefi t companies.Whilesuchaprovision the discretion ortheauthoritytoapprove ordisapprove achange association. Priortotheamendment,registrar didnothave to themissionofapublicbenefi t companyoranon-profi t theintroduction ofchanges standing indecisionsconcerning reporting requirements. First,thenewlawgivesregistrars special those related tochangesinmissionandthoserelated to provisions whichincrease theregulator’s powers,inparticular be regarded as“publicbenefi t”. Thenewlawalsocontains “public benefi t” is;nowthenewlawlistsmissionsthatwill new lawrevokes theregulator’s authorityindeterminingwhata (i.e., anon-profi t company).Oneofthemainprovisions ofthe incorporation ofcompaniesforthepurposea“publicbenefi t” No. 6totheCompaniesLaw, the whichprimarilyconcerns In thesecondhalfof2007,KnessetpassedAmendment LIFE OFANASSOCIATION Part Two 10 9 8 7 www.mod.gov.il/pages/general/pdfs/terror.pdf Regulations -1945against organizationsstartingin1964. Forthecompletelist, whichalsoincludes theordertoclosedownt The bill andexplanationswerepublishedintheKnessetlegislativeproposals182of19November 2007p. 41. Draft Laws335dated15October2007, p. 76. Economic Arrangements Law2008-RevocationoftheEmployers Tax 24. Employers Tax See Adv. OphirKatz, «Doesamendmentno.6totheLawof Companies-2007meanmoreregulation?,»IsraeliCenterfor Third Sector Onitswebsite, publishesalistof«closedown»declarationsand«seizureproperty» orderssu theIsraeliDefenseMinistry 9 Thelawdefi nes a“foreign political 8

protect statesecurity, publicwelfare, andthepublicorder.” the grounds thatsuchmeasures were «necessaryinorder to pursuant totheDefence(Emergency)Regulations-1945,on as welltheseizure oftheassociation’s property, were given the associationtobeillegal.Theclosure order, thedeclaration Restoration ofMuslimHolySites(locatedinIsrael)anddeclared ordered theclosure oftheAl-AqsaAssociationfor In August2008,theIsraeliMinisterofDefence,EhudBarak, DISSOLUTION OFANASSOCIATION Part Three site. Internet law provides thattheNGOwillpublishthisinformationonits known thatthedonationisfrom aforeign politicalentity.” The to report underthissectionapplies“ifitkneworshouldhave donation camefrom aforeign politicalentity, andtheobligation requires theNGOto“doitsutmost”determinewhether the conditionsofdonation,ifthere are such.”Thelawalso constitutional righttodueprocess. Whileaclearmechanism era powersare draconian and stripthosedamagedoftheir extremely dangerous, particularlybecausetheseMandatory- general. TheDefenceMinister’s useofemergencypowersisalso to theassociation’s membersandtotheArabminorityinIsrael of therightstofreedom ofexpression, religion andassociation, are gathered anddistributed.Thesestepsconstituteaviolation the holymonthofRamadan,duringwhichmostalms by thefactthatorder cameshortlybefore thebeginning of caused bytheclosure oftheorganisationismadeallgreater sites, cemeteriesandeducationalinstitutions.Thedamage alms toMuslimsinneed,aswellrestoring Muslimholy Israel. Itplaysaveryimportantrole incollectinganddistributing The Al-AqsaAssociationisoneofthemainArabcharitiesin Regulations –1945. were givenpursuanttotheDefence(Emergency) well astheseizureofassociation’sproperty, be illegal.Theclosureorder,thedeclarationas (located inIsrael)anddeclaredtheassociationto Association fortheRestorationofMuslimHolySites Ehud Barak,orderedtheclosureofAl-Aqsa In August2008,theIsraeliMinisterofDefence, he Al Aqsa Association see:he AlAqsaAssociation bmitted undertheEmergency(Defense) Research, BenGurionUniversity , 1975 – isrevoked. 10

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRY REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRY REPORTS 28 letter fromtheDefence Minister. Adalah NewsUpdate, 25 August 2008, availableat: 11 action toclosedowntheorganisation. chose insteadtoimposeanarbitrary, sweepingadministrative judicial opportunitytodefendthemselves,theDefenceMinister an NGO’s activities,whichprovides organisationswithaproper exists intheLawofAssociations-1980forcessation See: «AdalahDemandsthatDefenceMinisterEhudBarakRevokehisDecision toCloseDownthe Al-Aqsa Association andtoProclai 11

http://www.adalah.org/eng/pressreleases/pr.php?ﬁ le=08_08_25 . To date, Adalah has notreceivedaresponsetoits m itanIllegalOrganization,» Freedom of Association in Jordan

by Ghosson Rahhal

RECOMMENDATIONS

The Jordanian government is urged to:

1. With regard to the political situation and the general framework of democracy and human rights: • Any legislation aiming at ﬁ ghting terrorism should respect Jordan’s international human rights commitments and other relevant standards. Such legislation should not prescribe any restrictions on peaceful activities. The pretext of combating terrorism should not be used to deprive persons from their right to a fair trial before a Common law judge. • Revise the existing Law on Public Gatherings and ensure that there is genuine and inclusive participation by all sections of civil society (together with the provision of appropriate assistance by international human rights law experts). Ensure that the newly drafted law incorporates international standards of the right to association, particularly in relation to: - Abolition of the requirement for prior approval of any public meeting or demonstration; - Deﬁ ning the meaning of “public gathering” to include only those taking place in publicly accessible places or those that are open to the public.

2. With regard to the legislation and practice related to freedom of association: • Draft a new law on freedom of association which, in line with international standards, ensures that: - Associations can be established by notifi cation without a need for prior license; - The government’s ability to appoint founding members or impose any form of governmental management is removed; - Associations may not be dissolved, boards of directors dismissed or temporary boards appointed by administrative decisions; - No associations be dissolved or blocked unless by fi nal judgment in a court of law after exhausting all available means of appeal; - The law enforcement powers of the Ministry of Social Development to enter NGO premises and access fi les at will are removed; - Associations have the right to receive the necessary funds for fi nancing their activities without prior license as long as all foreign exchange and customs laws have been complied with.

Introduction

POLITICAL AND LEGAL FRAMEWORK AND made it illegal for associations to organise meetings to discuss THE HUMAN RIGHTS SITUATION any political issue or to criticise the state’s foreign policy. The previous defi nition had stated that a public meeting was a On 7 June 2008, the parliament adopted the modifi ed Public meeting for the purpose of discussing a public issue. Meetings Law after introducing some amendments.1 These - The amended law reduced the waiting time to obtain permission amendments included the following provisions: to hold a public meeting from three days to 48 hours. - A public meeting was defi ned as any meeting aimed at - The amended law also reduced from 48 hours to 24 hours the discussing the public policies of the state. In practice, this period within which the governor has to respond to a request

1 Al Arabelyom newspaper, 7/6/2008.

29 Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRY REPORTS 30 http://www.euromedrights.net/pages/511/news/focus/58202 http://www.euromedrights.net/pages/511/news/focus/58204 andthepressreleasedatedof1st August 2008 from civilsocietyactors Abdullah IIofJordan on17September, despiteheavycriticism law onNGOs(“SocietiesLaw”).Thewasratiﬁ ed byKing On 6July2008,bothHousesofParliamentpassedanew 4 3 2 5- 4- 3- 2- 1- further extenditscontrol overtheactivitiesofassociations. assembly ortoaﬁ nal judicialverdict.

SeethejointletterissuedbyEMHRN andHRWpublishedonJuly30th, 2008 Such arightviolates Article 17ofthe Arab Declarationof Freedom Human Rights Watch, “Shutting OuttheCritics,” approved. respond, thepublicmeetingwillbeconsidered tohavebeen for ameetingtobeheld.Moreover, failsto ifthegovernor

change oramendthembyaministerialdecision. of theController, whichwill,infact,makeiteasiertosimply “special regulations” shoulddeterminetheresponsibilities the Controller are notclearlydefi ned. Article5/3states that by the“Controller oftheRegistry”.Theresponsibilities of the MinistryofSocialDevelopmentwhichistobesupervised process. Article5ofthelawestablisheda“Registry”within to takeobtainlegalstatus,whichmightdelaytheregistration Thelawintroduced anadditionalstepassociationsnowhave impose penaltiesandorder variousmeasures, including The MinisterofSocialDevelopmentalsohasthepowerto any donationsorfundingfrom non-Jordanian sources. authorisation from therelevant ministrybefore receiving from Jordanian individuals,andrequires themtoobtain annual reports anygrantsor donationstheyhavereceived Article 17obligesallassociationstodeclare intheir intervene intheiractivities. action plan(Article16),whichwillallowtheauthoritiesto Finally, associationsalsoare required tosubmitanannual the association’s meetingwillbeconsidered unauthorised. general assemblyatleasttwoweeksbefore themeeting, and theController ofthedate,agendaandplaceits that, iftheassociationdoesnotnotifyrelevant minister authorities. Article14.B.1ofthelawmoreover stresses cannot beconsidered validuntiltheyare approved bythe decisions takenbyanassociation’s generalassembly stipulates thatcertain Article 14.C.1ofthelaw on CivilandPoliticalRights. Covenant of theInternational spirit andletterofArticle20 authorisation, contrarytothe remains subjecttoprior registration ofassociations The procedure forthe association. to 11(Article6),thelawmadeitmore diffi cult toestablishan By raisingtherequired numberoffoundingmembersfrom 7 2 that it would allow the government to thatitwouldallowthegovernment control overtheactivitiesofassociations. allow thegovernmenttofurtherextendits criticism fromcivilsocietyactorsthatitwould II ofJordanon17September, despiteheavy Law”). Thelawwasratifi passed anewlawonNGOs(“Societies On 6July2008,bothHousesofParliament http://hrw.org/reports/2007/jordan1207/3.htm of Association, whichstatesthatthe righttodissolveany

Culture toformallyregister theirassociation.TheMinister intellectuals, failedtoobtaintheapproval oftheMinistry cultural relationship between Jordanian andSyrianwriters Association(Ekha’)”,whose goalistodevelopthe Fraternity In January2008,thefoundersof“Jordanian-Syrian within thelarge‘Abbaditribe’.” fi soughttoavoidviolence led againstAbadibythegovernment the allegations.According toaroyal courtoffi cial, “thecharges sentenced totwoyearsinprisonwithoutanyinvestigationinto article accusingtheInteriorMinisterofcorruption,andwas convicted of“attackingtheprestige ofthestate”foranonline offi cial authorisationandwasnotlegallyestablished.Abadi hadnotobtained on awebsiteaccessibletheInternet) certain politicalandeconomicviewsshare theirthoughts the Jordan NationalMovement(agroup ofpeoplewho share the establishmentofanassociationorinstitution.Unlicensed law, theauthorisedministrymustgiveitswrittenapproval for 1966, amendedbyLawNumber2of1995.Underthecurrent by LawNumber33onAssociationsandSocialInstitutionsof Civil societyassociations’activitiescontinuetoberegulated FORMATION OFANASSOCIATION Part One 6- ed byKingAbdullah

required priorapproval. if anassociationreceives donationsorgrantswithoutthe temporary board ofdirectors. Thisisparticularlythecase of associations’electedboards andappointmentofa of associationsforvariousreasons, Development awiderangeofrights,includingthedissolution Articles 19and20ofthelawgiveMinisterSocial regulations). banking conﬁ dentiality (contrarytowhatisstipulatedinother these procedures. Inaddition,associationsdonotenjoy dissolution, againstassociationswhichdonotcomplywith associationshouldbeexclusivetoitsgeneral 4 an unlawfulgroup because Abbadi guiltyofbelongingto ex-parliamentarian Ahmadal- the StateSecurityCourtfound In October2007,forexample, to twoyears’imprisonment. criminal prosecution andup their membersare subjectto are deemedunlawful,and or unregistered associations

3 andthesuspension

activities. to interviewtheassociations’foundersandexaminetheir should already havecontactedtheintelligencedepartment of Interioriscurrently handlingtheregistration applicationand advance authorisationfrom the governor. Other publicmeetings,forexampleinhotelfacilities,stillrequire their ownpremises couldbeexemptedbyaspecialregulation. advance authorisationwere informedthatonlymeetingsinside toexempttheiractivitiesfrom needing have urgedthegovernor for approval, withoutproviding anyjustiﬁ cation. NGOsthat the governor. haverefused Inmostcases,governors requests that demonstrationsorpublicmeetingsreceive priorapproval by and associate.TheLawonPublicGatheringsof2004 The assemblylawrestricts therightofcivilsocietytoassemble LIFE OFASSOCIATIONS Part Two fell underthejurisdictionofMinistryCulture. or informally, andthat,therefore, theassociation’s registration that Syriawasnotinvolvedintheassociation,eitherformally association foundedbyJordanian citizens.Theyemphasised Jordanian andSyrianintellectuals,itwasmerely alocal the association’s goalwastostrengthen culturaltiesbetween of Interior. explainedthat,eventhough Thefounders,inturn, that theyshouldhavesubmittedtheirrequest totheMinistry Ministry ofCulture hadnojurisdiction.TheMinisterexplained of Culture rejected theirapplicationonthegrounds thatthe in aprivatespacefront oftheir partyheadquarters. deniedpermission,forcinggovernor partymemberstoprotest its membersbytheGeneralIntelligenceDepartment.Amman’s ofﬁ ce toprotest thecontinueddetentionwithouttrialofseven permission toholdademonstrationinfront ofthePrimeMinister’s In September2007,theIslamicActionFront (IAF)requested a workshop in the Jerusalem International Hotelthefollowing a workshopintheJerusalemInternational NGO TheNewJordan (al-Urdun al-Jadid)permission tohold ofAmmandeniedthe On 26October2007,thegovernor Islamic ActionFront. former role asheadofthe “Shura” Counciloftheopposition Identity”. Therejection waslikelyduetoMrAbdAllateefArabiat’s a conference entitled“TheFamilyistheNurseryofValues and a formerthree-time president ofparliament)permission to hold refused theAfafSociety(whichisrunbyAbdAllateefArabiat, worth mentioningthat,inJuly2007,Amman’s deputygovernor 12 11 10 9 8 7 6 5 Human Rights Watch, “Shutting OuttheCritics” Human Rights ofForeign Watch ResponsetoMinistry Affairs Critique New York, 19, February 2008 The LawofPublicGathering2004wasin forceuntil30June2008 withthewriterandhumanrightsactivistKhalidQurran,Electronic interview 1/6/2008 The Italianbroadcastingnews, 2/1/2008 SuhaPhilipMa’ayeh, “Jordan barsIAFfromprotesting”, Jordan Times Newspaper, 14May 2008 BureauofDemocracy, Human Rights, andLabor, Reports on HumanRightsPractices2007”,“Country releasedon11 March2008 Ibid. 6

http://hrw.org/reports/2007/jordan1207/3.htm 8

5 TheMinistry 9 7 Itisalso requires found himnotguiltyofthesecharges. safety” inpeacefuldemonstrations.TheCourtofCassation criminalises acts“disruptingpublicorder” or“endangeringpublic tried thisstudentunderThePrevention ofTerrorism Act,which and dishonouringthenationalfl ag.” TheStateSecurityCourt charged with“fuellingnationaldiscord, incitingsectarianism, university studentwasarrested anddetainedfor14days, fl ag duringaprotest thathadbeenoffi cially authorised.A of itssupportershadbeenarrested fortramplingthecountry’s On 14December2007,theIslamicActionFront claimedthat20 October andEidAlAdhaon21December2007. stop membersfrom performingtheprayersofEidAl-Fitron12 twice surrounded the“Professional Association”compoundto the IslamicActionFront (IAF). Nakba commemorations,butrathertorestrict theinfl uence of an explanation.Thebanapparently wasnotintendedtocurtail eviction ofthousandsPalestinianpeople”,withoutproviding “the catastrophe oftheIsraeli occupationofPalestineand rallies tocommemoratethe60thanniversaryofNakba, down arequest bytheIslamic ActionFront toorganisepublic On 14May2008,Amman’s governor, SaadManasir, turned permission forsuchaworkshop. haddenied the fourthtimeintwomonthsthatgovernor al-Hourani, thedirector ofTheNewJordan, saidthatthiswas the workshophadtobecancelleddueconfusion.Hani reversed2007. Thegovernor hisdecisionthesameday, but Jordan’s parliamentaryelections scheduledfor20November day, whichwastodiscusstherole ofcivilsocietyinmonitoring a workshop. that thegovernorhaddeniedpermissionforsuch said thatthiswasthefourthtimeintwomonths Hani al-Hourani,thedirectorofTheNewJordan, http://hrw.org/english/docs/2008/02/19/jordan18117.htm 12

10 Moreover, policeforces 11

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

Freedom of Association in Lebanon

by Jad Yacoub

RECOMMENDATIONS

The Lebanese government is urged to:

1. With regard to the political situation and the general framework of democracy and human rights: • Abolish exceptional courts, military tribunals and the council of justice

2. With regard to the legislation and practice related to freedom of association: • Implement Circular No 10/am/2006 which facilitates the formation of associations; • Ensure that the registration system is merely a declaratory one; • Ensure that non-Lebanese citizens can become members of an association; • Ensure, by way of an adequate consultation system, that all associations can have the opportunity to participate in the decision-making process on policies of public interest.

Introduction

POLITICAL AND LEGAL FRAMEWORK AND Two attempts were made to amend the Associations Law THE HUMAN RIGHTS SITUATION to make it more restrictive. If this had been successful, the amendments would notably have replaced the notifi cation In Lebanon, freedom of association is guaranteed by the system with a licensing mechanism. Ottoman Law of 1909, directly inspired by the French 1901 law on associations and enshrined in Article 13 of the Constitution. In April 2005, Syria withdrew from Lebanon. In the following The Ottoman Law, known for being liberal, has adopted a months, new associations were established and several already notifi cation system (also called declaration system) for the operational groups went to the Ministry of Interior to register. setting up of associations. In May 2006, the Ministry of Interior, under pressure from and The Lebanese notifi cation system applies to all associations in close collaboration with civil society, issued Circular No. 10/ with the exception of those regulated by specifi c Lebanese am/2006, which established a new notifi cation mechanism provisions which require prior licensing. Despite its liberal in order to facilitate obtaining an “Ilm wa Khabar” (receipt). character, the Lebanese law prohibits any “secret association” Yet, in Lebanon, not all legal provisions are respected by the (undeclared) and provides the government with the power to administration. This applies in particular to the Ministry of Interior, dissolve an association by virtue of a decree issued by the which has been systematically transforming the declaration Council of Ministers. system into a licensing system, and thus has been turning the Lebanese legal system into a tool of the state. It is hoped that The liberal character of the 1909 Law has not always been well the appointment of an independent nominee from civil society to received by the authorities. In fact, since Lebanese independence head the Ministry of Interior will lead to changes. in 1943, the administrative practice concerning associations has often been arbitrary, particularly in the post-war period (1990- Lebanon has not yet adopted any counter-terrorism legislation. 2005), during which the administrative practice established a system to monitor the emerging civil society.

33 Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRY REPORTS 34 member ofaLebaneseassociation. It mustbenotedthatanon-Lebanesecitizencannotbecome inearlysummer.nomination ofthenewgovernment the group’s fate.Nosuchcaseshavebeenreported sincethe of theassociation.Afterthis,MinistryInteriordecides fi le tothesecurityservices,whoinvestigatefoundingmembers In certaincases,theMinistryofInteriorsendsnotifi cation was establishedin2005. though S.O.L.I.D.E.hasbeenactivesince1990andtheCLDH 16 monthsrespectively, before receiving theirnotifi cations, even the CLDH(LebaneseCentre forHumanRights)waitedeightand S.O.L.I.D.E. (SupportofLebaneseinDetentionandExile) And yet,associationssuchas therefore suffi cient. this respect.” powersin enjoy anydiscretionary withoutanydelayanditdoesnot the ÌlmwaKhabarinreturn 6 ofthe1909Law, the stated that,uponreceiving thedeclarationmentionedinArticle In itsdecisiondated18November2003,theStateCouncil FORMATION OFASSOCIATIONS Part One Amere notifi cation is “Ministry ofInteriorisobligedtoissue “Ministry respected bytheadministration. In Lebanon,notalllegalprovisionsare 2005. as itwascompletelyunexpected,givenSyria’s withdrawalin was widelydenouncedbyhumanitarianassociations,especially to movethemawayfrom theroute oftheSyrianminister. This The RepublicanGuard hitthedemonstratorswiththeirrifl e butts 2008, duringthevisitofSyrianMinisterForeign Affairs. demonstrated ontheroad tothepresidential palaceon 21 July CLDH, aswellbysomerepresentatives ofpoliticalparties- detainees inSyrianprisons-supportedbytheS.O.L.I.D.E.and regardWith tofreedom ofexpression, thefamiliesofLebanese war asmilitialeaders. against certainLebanesepoliticalfi gures whoparticipatedinthe by afewmediaoutletsof“politicising”thisissueandcrusading Halat one),theabove-mentionedorganisationswere accused However, followingtheirmentionofmassgraves(inparticularthe (S.O.L.I.D.E. andCLDH),whichare stillnotresolved inLebanon. working onforced disappearanceandarbitrarydetentionissues interested intheactivitiesofNGOs,andparticularlythose pressThe Lebaneseandinternational haverecently been abroad. associations. Associationscan,justasfreely, receive fundsfrom association. associations. Thelatterenjoyfreedoms ofassemblyand didnotinterveneintheactivitiesof Lebanese government Between 1September2007and2008,the LIFE OFANASSOCIATION Part Two their noti eight and16monthsrespectively,beforereceiving (Lebanese CentreforHumanRights)havewaited Lebanese inDetentionandExile)theCLDH Associations suchasS.O.L.I.D.E.(Supportof fi cations. international networkof international from joiningaregional or in conferences abroad or forbidden from participating No associationwas Freedom of Association in Libya

RECOMMENDATIONS

The Libyan government is urged to:

1. With regard to the political situation and the general framework of democracy and human rights: • Draft a Constitution respectful of fundamental rights that will be submitted to the Libyan people for approval by referendum on the basis of a secret ballot; • Abolish all provisions of national laws in which it is mentioned that fundamental individual and collective freedoms are guaranteed only “within the limits of public interest and the Revolution”; • The authorities should comply with the concluding observations of the Human Rights Committee, which calls on them to “take all necessary measures to guarantee the exercise in practice of the right to peaceful association and assembly.

2. With regard to the legislation and practice related to freedom of association: • Democratically draft a law incorporating international standards on the right to freedom of association; • Put an end to the arbitrary interference by the authorities, in particular the revolutionary committees, in the internal affairs of associations, whether that interference is direct or carried out under the guise of judicial proceedings; • Either free all human rights defenders and members of associations who are arbitrarily detained. In the event that charges are not withdrawn, guarantee the right to a fair trial before an independent and impartial court; • In line with the UN Human Rights Defenders Declaration, put an end to all threats, intimidation and harassment against human rights defenders and bring to justice the perpetrators of such acts.

Introduction system - the Revolutionary Committee System - that purposely confuses the interests of the Party with those of the State and POLITICAL AND LEGAL FRAMEWORK AND the Party organs with the institutions of the State. The State is the party and the party is President Gaddafi . The “Jamahiriya” THE HUMAN RIGHTS SITUATION system is structured in such a way as to concentrate power in extremely few hands, with all powers ultimately situated in the person of President Gaddafi . The politico-legal structure is such Libya has been ruled for over 40 years by the non-elected that all powers (legislative, executive and judiciary) are held by government of Colonel Gaddafi , who abolished the Constitution President Gaddafi , who is neither accountable to the public nor (his fi rst act as President) on 1 September 1969. Ever since, to any other institution. the country has taken a totalitarian path that imposes severe constraints on the enjoyment of basic human rights. Libya has The “Jamahiriya” system rejects the very principle of elections, no constitution, no parliament and not a single elected institution. repudiates the principles of parliamentarian representation, There is no separation of powers and there are no judicial and condemns pluralism. Political parties, independent trade guarantees. The country is governed by a “unique” one-party

35 Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRY REPORTS 36 free and fair elections and opposes to it the Jamahiriya system that supposedly gives everyone theequalopportunitytoexercis free andfairelections andopposestoittheJamahiriyasystem thatsupposedlygiveseveryone be oppressedbythe majority andwillthereforehavenosayin the conductofnation’s affairs. This iswhytheJamahiriya tadjeel) fordemocracy, aselectionswillinallcasesproduceamajority andaminority. This isunacceptabletotheJamahiriy entity thatisbasedontheconceptsofelection, representation andaccountability. InLibya, representationandelectionsare representation, i.e. regularfreeandfairelections bysecretballotwillalsobedenied. There isnosingleinstitution, orga based ontwomainprinciples: non-representationandnon-election. Indeed, given thatthesystemrefusesrepresentation, itis 1 in Libyaareandundercomplete authorisedbythe government Allorganisations organisations independentofthegovernment. community generallyconsiders“civilsociety”toconsistof There isnocivilsocietyinLibya, inthesensethatinternational possible crimeintheeyesofLibyangovernment. them wasan“attempttoorganiseapoliticalparty”,theworst of sixto25yearsinprison.Themainchargebrought against 2007. Theywere sentencedon12June2008toheavypenalties before theplanneddateforsit-inandjailedon14February basic humanrights.These11would-beprotesters were arrested Martyr’s Square toprotest againsttheongoingviolations of of organisingaprotest (sit-in) on17February2007inTripoli’s court sentenced11Libyanswhohaddeclared theirintention is severely andviolentlyrepressed. InearlyJune2008,aTripoli right, whichiscloselylinkedtotherightfreedom ofexpression, margin forfreedom ofassociation.Anyattempttoexercise this possibly theonlycountryinworldthatallowsabsolutelyno for boththeletterandspiritofArticle22.Libyaisquite Despite this,Libyahasconsistentlyshowncompletedisregard association. respect Article22oftheICCPR,whichguaranteesfreedom of Rights (ICCPR)on15May1977andistherefore boundto Libya ratifi CovenantonCivilandPolitical ed theInternational LEGISLATION Part One and unlimitedpowers. with the“Secretariat ofthePGC”,whichenjoysuncontrolled “Politburo” ofatotalitarianpartyispurposelyconfusedinLibya of totalitarianparties.There isnovotingheldinthePGC.The and dismisssomeorallofitsmembers,exactlyasinthecase except forthePresident, whohasthepowertodisbandPGC does notexistinLibya,andthere isnoimmunityforanyone President’s actions,inherent toparliaments’control functions, laws. Thepowertolimitorjudgethe nor doesithavethepowertomake a Parliamentatall,asitisneitherelected usually anderroneously assumedtobealegislativebody, isnot 71 of1972).Theso-called“People’s GeneralCongress” (PGC), unions andindependentNGOsare bannedinLibya(LawNo The “Jamahiriya” systemhasbeen createdsoastoensurethatallpowers(political, economicandjudicial)arefullycontroll 1 There isnocivilsocietyinLibya. other “founders”,ahumanrightsorganisation-AlAdel interesting intheLibyancontext) initiativestoform,alongwith involved inthemovementwhichhastakenhesitant(but It isimportanttopointoutthatMrAl-Mansourywasheavily breach theseeminglyimpermeablewalloftotalitarianism. toallthosewho,likeMrAl-Mansoury,warning are strugglingto His torturers toldhimoutrightthatthetorture wasintended asa was submittedtoawholeday’s torture andthenleftontheroad. Alghazal,and Al-Mansoury waskidnapped,asthejournalist right tofreedomOn28June,Mr ofassociationontheInternet. Dhaif Alghazal,were murdered (26May2006)fordefendingthe freedom ofexpression andassociation.Some,likethejournalist their intentiontoprotest thegovernment’s violatingtheirrightsto reclusion” sentencesforthethree peoplewhomerely declared security system.Thisexplainstheexcessive25-year“criminal that cannotbepardoned andwhichisseverely repressed bythe represents Itisacrime theultimatecrimeforgovernment. join anunauthorisedpolitical,studentortradeunionassociation freedom ofassociationorexpression. Anyattempttoform or Libyans, theirattempttoindependentlyexercise theirrightto “crime” hasbeen,asintheabove-mentionedcaseof11 for longyears,orhavebecomepoliticalrefugees. Theironly Thousands ofLibyancitizenshavebeenkilled,imprisoned OF ASSOCIATION RESTRICTIONS TOFREEDOM Part Two it comestotheexercise oftherightassociation. isinfl attheirexpense,thatthegovernment learned, exible when to exercise it.Allthosewhohaveendeavored todosohave also beasource ofviolentreactions towards thosewhoattempt Not onlyistherighttofreedom ofassociationnonexistent,itcan the fi rst andforemost prerogative; everythingelseissecondary. relevant securityagencies.InLibya,theofregime is the Jamahiriya.Allorganisationsare created andfi nanced by Foundation, totheHumanRightsCommitteeestablishedunder state control: from ScoutorganisationstotheGaddafi and theyregularly report backtothe they allhaveasecurityrole toobserve the state.Inadditiontotheirmaintasks, nisation, tradeunionoranyotherpublicprivate a system, whichallegesthattheminoritywill refuses representative democracyaswell , byprinciple, consideredfrauds(attamtheel unavoidable thattheusualcorollariesof e powercollectivelyand democratically. ed byColonelGaddafi . The Systemis

type institutionthatactsaswatchdogoftheregime. security apparatusofthe“revolutionary committees”,amilitia- organisations thatare notsubjecttothecompletecontrol ofthe one inthe“Jamahiriya”systemwillbeallowedtoformorjoin and ensure itsconsolidation.Simplyput,thismeansthatno “Declaration ontheestablishmentofAuthorityPeople” the regime, threatened to“resort toKalashnikovs”protect the same time,the“RevolutionaryCommittees”,armedwingof authorised andthatconsultationswere stillongoing.Atthe later, memberdeclared agovernment thatnothinghadbeen tothateffect. However,by thegovernment a few hours Centre forDemocracy. Heevendistributedaletterdulysigned agreed toandauthorisedthe“Adel”organisation during whichheoffi had cially declared thatthegovernment On 5June2008,MrAl-Mansouryheldapress conference committee oftheCentre forDemocracy. of the“Adel”organisationandChairmanfounding both projects, ashewasamemberofthefoundingcommittee of assemblyinLibya.MrAl-Mansouryplayedaleadingrole in narrow marginallowedforfreedom ofexpression andfreedom Democracy, anadditionalattempttofurtherwidenthevery hadauthorisedtheopeningofCentregovernment for organisation. Likewise,MrAl-Mansouryannouncedthatthe hadfithat thegovernment nally recognised thenewly-created MrAl-Mansouryannouncedon5June à-vis thegovernment. Gaddafi ’s son,SeifAl-Islam,whichissemi-independentvis- Human RightsOrganisations-undertheaegisofColonel whole day’stortureandthenleftontheroad. the journalistAlghazal,andwassubmittedtoa On 28June,MrAl-Mansourywaskidnapped,as 37

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

Freedom of Association in Morocco

by M. Youssef El Bouhairi and Mme Awatif Laghrissi

RECOMMENDATIONS

The Moroccan government is urged to:

1. With regard to the political situation and the general framework of democracy and human rights: • Consider the fact that the criminalisation of the expression of views that are deemed to be denigrating to the King and to “the territorial integrity” is incompatible with the spirit of international standards of human rights; • Hold police accountable for abuses through comprehensive and impartial investigations; Conduct an impartial investigation into the alleged human rights violations committed by the Moroccan police forces during demonstrations in Sidi Ifni, and identify and punish the persons responsible.

2. With regard to the legislation and practice related to freedom of association: • Ensure that the existing laws with regard to respect of freedom of association are strictly applied • Respect the administrative procedure for forming and registering associations; Strictly apply the provisions of the law pertaining to the procedure on declaration: the administrative authorities must issue “on the spot a sealed provisional receipt” (article 5, par. 1); • No associations should be dissolved or blocked unless by ﬁ nal court judgment after exhausting all means of appeal; • Implement the provisions of the 2002 Act, which allows associations that are simply declared to receive donations; • Lift the prohibition that prevents certain categories of civil servants from joining a trade union (decree dated 5/02/1958 modiﬁ ed in 1966) as this contradicts the provisions of the law on associations, which does not provide any sectorial limitation to the right to join an association.

Introduction

POLITICAL AND LEGAL FRAMEWORK AND In Morocco, constitutional provisions proclaim the rights and THE HUMAN RIGHTS SITUATION freedoms of citizens. The preamble of the 1996 Constitution reafﬁ rms Morocco’s commitment to universally recognised Morocco is currently undergoing a radical transformation through human rights and Article 9 guarantees freedom of movement an institutional and legislative reform process to promote and in all parts of the country, freedom of opinion and expression, protect human rights. This positive development resulted in freedom of assembly and freedom of association, and the the reform of the family code, the criminal procedure code, the freedom to join any trade union or political party. Only the law code of deregulation of the audiovisual sector, the code on the can impose limits on the exercise of these freedoms. criminalisation of torture, and the nationality code. However, public liberties - and particularly freedom of expression, Morocco therefore has put into place several legal provisions 1 association and assembly - remain subject to certain restrictions regarding freedom of association, which is regulated by Dahir that limit their practice. No. 1-58-376 on freedom of association, and two other

1 King’s decree

39 Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRY REPORTS 40 of association. obstructs associations’functioningandtheexercise offreedom associations, inspiteoftherelevant legalprovisions. It thus at timesrefuses toissuethe receipt forthisdeclarationto certain authorisation, butratherasimpledeclaration,theadministration Although forminganassociationdoesnotrequire offi cial monarchy. But,inpractice,thelawisnotalwaysrespected. undermining theIslamicreligion, territorialintegrityorthe illicit, illegal,contrarytopublicmorality, discriminatory, orrisk dissolved bythetribunalwhenitsobjectivesare deemed According tothecurrent legislation,anassociationcanbe is deemed discriminatory (Article3). is deemeddiscriminatory Prosecutor. Besides, inaccordancewiththe convention againstracialdiscrimination, ratifi ed bytheMoroccanStatein1969, t 3 association couldbedecidedunilaterally by thegovernmentwayofadecree. could bepunishedbyaprisonsentence ofupto2yearsandafi ne of10,000 to50,000Dirham(about9004,500Euros). The s 2 - - - completed in2002. of associationwasamendedin1973andthenmodifi ed and under theCodeofPublicLiberties.The1958Dahironfreedom establishing thepress code,whichwere publishedin1958 Dahirs, No.1-58-377onpublicgatheringsand1-58-378 Itprovidesforasingledeclarationtothe personsinchargewithintheterritorialadministration, whothensendacopyoft Indeed, the1973amendmentsintroducedobligationofapriordeclaration grants associationstherighttoreceive foreign funding. recognising associationsasbeinginthepublicinterest and the declarationprocedure. a judicialprocess, andsimplifi es the formalities withregard to the dissolutionofanassociationcanonlybeeffective through The 2002reform, whichresulted inActNo.75-00,provides that the AssociationsLaw. legislation, incaseofviolationtheobligationsprescribed by provided forbycriminal well astoincreased penalties by theexecutivepower, as suspension ordissolution subjected toadministrative authorisation, andwere without declarationorprior could nolongerbeestablished associations. Associations 1-73-283 of10April1973provides forstrictercontrol of The fi rst amendmentresulting from Dahirproviding ActNo. which anyassociationshallbesubjecttopriordeclaration. that theprovisions ofArticle5are respected, according to individuals canbeformedfreely, withoutauthorisation,provided 2, 3).According toArticle2ofthe1958Dahir, associationsof and thelocalauthorityunderMinistryofInterior(Articles1, accomplishment ofdeclarationformalitieswiththeprosecution the exercise ofassociations’fulllegalcapacitytothe associations from the1901French Act,whichsubjects The 1958Dahirtooktheprincipleoffree formationof 2 3 Italsodefi nes theprocedures for human rightsremain“fragile”. illustrate thatachievementsinthefi protested fortherespectoftheirrights.They demonstrations andsit-insofpeoplewho use offorceemployedin2008tobreakup Several examplesshowthedisproportionate to formanyassociation. Ifthisobligationwasn Movement fortheNation,andNationalAuthority the JusticeandCharityOrganisation(aladlwaalihsan), National AssociationofUnemployedGraduatesinMorocco, terrorism orrespect forterritorialintegrity. Forexample,the certain associationsonthegrounds ofpublicsecurity, counter- The administrationrefuses or delaystheissueofreceipts to formalities notrequired bylaw. board members,etc.),butalsorequest thefulfi lment ofother only askforthedocumentsstipulatedbylaw(ID,pictures of some associationsortothebailiff, andsometimestheynot authorities continuetorefuse todeliverprovisional receipts to Yet theadministrativepracticehasnotchanged.Local declaration oftheassociation’s formation. association toentrustabailiff withthemissionofsubmitting statutes. Moreover, the2002Actauthoriseddirectors ofthe legal statusandcouldcarryoutitsactivitiesassetin was takenwithinthose60days,theassociationwouldacquire within 60daysfrom thedateofdeclaration.Ifnoaction the documentsrequired bylaw, untilafi nal receipt wasissued declaration procedure intoasystemofpriorauthorisationforthe deliver thereceipt tocertaingroups, therefore transforming the and acquire legalstatus.Inpractice,theauthoritiesrefused to authorities andtotheKing’s Prosecutor toformanassociation in 1973required groups tosubmitadeclarationthelocal Following politicalunrest inthecountry, theamendmentsmade Morocco on3May1979. CovenantonCivilandPoliticalRights,ratifiInternational ed by the limitationsimposedbyMoroccan legislationcomplywiththe can belimitedbylaw. Therefore, thequestioniswhetherornot freedom ofassociation,itneverthelessspecifies thatthisfreedom While Article9oftheMoroccan Constitutionof1966recognises ASSOCIATIONS FORMATION ANDDISSOLUTIONOF Part One: ed of eld he new Act prohibitsanyassociationthat acknowledging submissionof to issueaprovisional receipt, text required theadministration the practice.Thusamended association inorder toremedy the procedure toforman The 2002Actamended formation ofanassociation. ot respected, theassociation’s founders he requesteddocumentstotheKing’s uspension ordissolutionofan does notyetenjoyfullindependenceandstillhasfl aws, fi ne of10.000Dirham(about900Euros). monarchy andsentencedto three years’imprisonmentanda sacred values”.On22Maythey were chargedwithinsultingthe together withfourotheractivists,andfoundguiltyof“breaking the associationwasarrested. Hewasarrested againon3May, repressed. Followingdemonstrationson1May, thepresident of employment inthecivilservice.Theseprotests were violently demanding therighttoworkand,inparticular, accessto demonstrations infront ofthe Moroccan parliamentinRabat, In 2008,theAssociationofUnemployedGraduatesorganised Repression ofPeacefulAssembly “fragile”. illustrate thatachievementsinthefi eld ofhumanrightsremain people whoprotested fortherespect oftheirrights. They employed in2008tobreak updemonstrationsandsit-insof Several examplesshowthedisproportionate useofforce LIFE OFANASSOCIATION Part Two: religion, territorialintegrityorthemonarchy. ambiguousness ofwhatqualifi es as“undermining”theIslamic The diffi culty rests inthemanyinterpretations andthe who encouragesthemeetingofitsmembers. tries tore-establish thedissolvedorsuspendedassociation 900 to1,800Euros) are alsoincurred foranypersonwhoillegally a criminalpenaltyandfi ne of10,000to20,000 Dirham(about Once thecourtdecidesthatanassociationistobedissolved, that determinesthetermsofdissolutioncanbeappealed. decision istakenregarding itsdissolution.Thejudicialdecision prohibition ofanymeetinganassociation’s membersbefore a interim measure, theclosingdownofgroups’ premises andthe ban associationsandentrustedthejudiciarywithordering, asan The 2002Actabolishedthegovernment’s righttosuspendor 2002, onlyobtaineditsreceipt on16June2006. receipt. TheAmazighNetworkforCitizenship,establishedin Independence oftheJudiciary, havenotreceived aregistration Khalid Miftah, JalalalQotbi, Abdalah Rachdi, Youssef Alaoui, Hafi d Hafi di, MansourDridou, Redouane Zoubairi, HichamIdrissi, 6 5 morals, orwhosegoalistoharmtheIslamicreligion, territorialintegrityorthemonarchy, ortoencouragediscrimination”. 4 limit theactivitiesofmanyassociations. provision givestheMoroccan authoritiesagoodopportunityto The namesofthedetainedstudents are: ZahraBoudkour, Alae Darbali, MoradChouini, OthmaneChouini, Youssef Machdoufi , Moham Illustrated, forexample, bythefactthatexecutive power, representedby theMinisterofJustice, alsopresides overthe Article 3oftheamended1958Dahir provides forthedissolutionofanassociationifitisfounded “for anillicitcauseoro 4 Asthejudiciary 5 this General UnionofWorkers in Rabat. 2007 organisedbytheDemocraticFederationofWork andthe in violence,particularlyduringthedemonstrationof26May followed thearrests were dispersedbythepoliceandresulted three years’imprisonment. Theprotest demonstrations that “breaking sacred values”andsentencedtobetweenone and Workers’ Day, 1May. Theywere triedandfoundguiltyof monarchy slogansduringademonstrationonInternational arrested sevenmembersoftheAMDHforshoutinganti- defenders andtradeunionistsoverthepasttwoyears.Police Several courtcaseshavebeenbrought againsthumanrights the Marrakeshprison. They are currently stagingahungerstrikewhileawaiting trialin destruction ofpublicproperty andformationofacriminalgang. students were incarcerated fordisruptingpublic order, disperse demonstratorsbelongingtotheUNEM.Several Marrakesh Universitycampus,policeviolentlyintervenedto caused bycasesoffoodpoisoningattherestaurant onthe Following demonstrationson14May2008,whichhadbeen but delayswere reported inAugust. investigation. Itwasexpectedtopublishitsreport inJuly2008, A parliamentarycommissionwasestablishedtoconductan Rachidi, for“disseminatingfalseinformationandallegations”. 13 June,alongwithAl-Jazeera’s Morocco bureau chief,Hassan Center forHumanRights.SebaaElLaylwasalsochargedon conference ontheviolenceinSidiIfniconvenedbyMoroccan Ibrahim SebaaElLayl,wasarrested afewhoursafterpress Indeed, theheadofahumanrightsorganisationinSidiIfni, arrested andthattheprotests hadbeenviolentlyrepressed. alleged thatmembersoftheassociationshadimmediatelybeen unemployed graduates,andcausedmanyinjuries.Witnesses Morocco), whichhadbeenorganisedbyanassociationof demonstration ofseveralassociationsinSidiIfni(South On 7June2008,securityforces violentlydisperseda Associations Judicial Proceedings againstMembersof many injuries. association ofunemployedgraduates,andcaused (South Morocco),whichhadbeenorganisedbyan a demonstrationofseveralassociationsinSidiIfni On 7June2008,securityforcesviolentlydispersed 6 bjective, incontradictionwiththelaworpublic HighJudicialCouncil Mohamedel-Idrissi, Nacer Lahssain. ed Jamili, MohamedElarbijadi, 41

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRY REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRY REPORTS 42 directed bytheinterested individualsthemselves. rather thanthatofanassociationjudgesmanagedand closely resembles thatofasubordinated civilservantassociation Association ofJudges,created in1995,whoseimagemore Thus, theonlyexistingjudgesassociationisHassanian association forthedefenceofindependencejudiciary. Magistrates are forbiddenfrom joiningjuristassociations orany only toleratedunderthestrictsupervisionofgovernment. of associationjudgesisnotformallyrestricted, butitis or joiningsyndicates,regardless oftheirstatus.Thefreedom Magistracy, magistratesare expressly prohibited from founding Under theLawof11November1974onStatus Control overtheFreedom ofAssociationJudges declared legalinseveralcourtcases. with alllegalrequirements tobegrantedauthorisationand was the authoritiesasanunlawfulorganisation,althoughitcomplied against membersofthisorganisation,whichispresented by Administrative andjudicialmeasures havebecomethenorm unauthorised gatherings.Somewere givenprisonsentences. with belongingtoanillegalorganisationandparticipatingin arrested andinterrogated bythepolice.Theywere alsocharged several membersoftheorganisation(includingwomen)were national informationcampaignof2007,entitled“OpenDays”, with belongingtoanillegalorganisation.Ontheoccasionof al Ihsanorganisationoverthecourseof2008andchargedthem The policehaveinterrogated severalmembersoftheAladlWa ethnicity”. the constitutionorthatisfoundedonbasisoflanguage party “whosemissionorobjectivesare incontradictionwith Parties Law, whichprohibits theformationofanypolitical Democratic Partyillegalforbreach ofArticle4thePolitical region). declared Thegovernment theMoroccan(Tiznit Amazigh associations suchasIZ’URANinLakhssassandIMALatMasst The Moroccan authoritiesrefuse tograntlegalstatusAmazigh Linguistic orReligiousActivities Prohibition onForminganAssociationwithSpecial Freedom of Association in Syria

by Dr. Radwan Ziadeh

RECOMMENDATIONS

The Syrian government is urged to:

1. With regard to the political situation and the general framework of democracy and human rights: • End the state of emergency in force since 1963, which is used to arbitrarily restrict enjoyment of the freedoms of association and assembly.

2. With regard to the legislation related to freedom of association: • Abolish the 1958 Law on Associations and Private Societies (Law No. 93); • Draft a law incorporating international standards on the right to free association, particularly ensuring that: - Associations can be established by simple notiﬁ cation without the need for a prior license. - The requirements of giving prior notice of any meetings and of sending minutes of meetings to the Ministry of Social Affairs and Labour are removed, to allow organisations to work without governmental interference; - The Ministry of Social Affairs and Labour does not dissolve associations, dismiss boards of directors or temporarily appoint boards; - No associations can be dissolved or blocked without a ﬁ nal court judgment after all avenues of appeal have been exhausted.

3. With regard to the practice related to freedom of association: • Put an end to police surveillance and intimidation of association members; the State should guarantee NGO members the right to privacy and outlaw and sanction any inappropriate restrictions on their communications; • For instance, halt the proceedings before the Damascus Criminal Court against Dr. Ahmad Tohme, Mr. Jaber al-Shouﬁ , Mr. Akram al Bunni, Dr. Fida al-Hurani, Mr. Ali al-Abdullah, Dr. Walid Bunni, Dr. Yasser Tayser Aleiti, Mr. Fayez Sarah, Mr. Mohammed Haj Darwish, Mr. Riad Seif, Mr. Talal Abu Dan and Mr. Marwan al-Esh, and release them immediately and unconditionally; by signing the Damascus Declaration and taking part in the establishment of the National Council of the Damascus Declaration for Democratic National Change, they have only peacefully exercised their fundamental rights as guaranteed by Syria’s Constitution and by international law.

Introduction

POLITICAL AND LEGAL FRAMEWORK AND powers of the security services and administrative authorities to THE HUMAN RIGHTS SITUATION areas previously outside their remit. This has led to far-reaching restrictions on individual rights and freedoms, and especially on The State of Emergency and martial law, which continue to be freedom of association. in effect in Syria today, were proclaimed in 1963 in accordance with Military Order No. 2 of the National Council of the The Order led to the emergence of numerous other laws, such Revolution leadership, dated 8 March. The Order extended the as the Act Concerning Opposition to the Aims of the Revolution

43 Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRY REPORTS 44 FORMATION OFASSOCIATIONS Part One Damascus. to 1300in2001,and217oftheseorganisationswere basedin Ministry ofSocialAffairs andLabourincreased by40percent did notexceed504.ThenumberofNGOsregistered with the scientifi c, educational,religious andcharitableorganisations In 1990,thetotalnumberofoffi cially authorisedsocial,cultural, organisations inSyriaisamongthelowestMiddleEast. civic organisations,thatthenumberofnon-governmental effectively prevent theestablishmentofassociationsand It isbecauseoftheselegalandpoliticalobstacles,which neither thestateofemergencynormartiallaw. stillhasnotamendedtheLaw,government andhasrevoked Ministry ofSocialAffairs andLabourin20072008,the spite ofpromises madebythe on associations’activities.In also imposesmanyrestrictions replace board members.It general assembliesandto Labour retains therighttoreject decisionstakenbyassociations’ 93) continuestobeineffect. TheMinistryofSocialAffairs and The 1958LawonAssociationsandPrivateSocieties(LawNo. overlapping security-intelligenceagencies. (Legislative Decree No.14of15January1969)established addition, theLawtoEstablishStateSecurityDepartment No. 109of17August1968),whichisanexceptionallaw. In Regarding theCreation ofMilitaryFieldCourts(LegislativeDecree (Legislative Decree No.6of7January1965),andtheLaw three months’imprisonmentandafi ne. Inaddition,Article288 which allactivitybyanunreported associationispunishableby jailed pursuanttoArticle71ofLawNo.93onassociations,under a licence,andundertheconstantthreat ofbeingprosecuted and organisations havethusbeenforced tooperateillegally, without rights organisations.Theninebest-knownlocalhuman Labour hassystematicallyrefused tograntlicenceshuman Over thepastsevenyears,MinistryofSocialAffairs and sensitive nature. some groups notengagedinactivitiesofapoliticalorotherwise grantedregistrationon politicalgrounds. Thegovernment onlyto the authorities,butrequests forregistration are usuallydenied of association.Privateassociationsare required toregister with restrictstheir activities,and,inpractice,thegovernment freedom therighttolimit associations, butalsograntsthegovernment The constitutionallowsfortheestablishmentofprivate domestic humanrightsactivists documented governmentharassmentof All throughoutthelastyear, reportshave

links to international groups ornetworks. links tointernational other humanrightsgroups in the MiddleEast,activistshavefew community extremely vulnerableandisolated.Compared to These lawsandpracticeshaveleftSyria’s humanrights Diab Sirieyehtofi ve yearsfortheirinvolvement. Ibrahim tosevenyears,andAyham Saqr, AlamFakhourand group. TheSSCalsosentencedTarek GhoraniandMaher years inprisonforhisconnectiontoaprodemocracy student Omar AliAbdullah,sonofactivistandwritertofi ve On 17June2007,theSecurityStateCourt(SSC)sentenced an answerfrom theMinistryofSocialAffairs andLabour. postponed thehearinguntil28October2008,whilewaitingfor December 2006.However, thecasestillhadnotbeenresolved by The organisationfi led anappealagainsttheDecree on27 of theapplication(withnoreason provided) on30August2006. April 2006andwasnotifi ed byDecree oftheMinistry’s rejection for registration totheMinistryofSocialAffairs andLabouron4 Rights inSyria(NOHR-S),forexample,submittedanapplication character.”international TheNationalOrganisationforHuman authorisation, joinsapoliticalorsocialorganisationofan years’ imprisonmentforanypersonwho,“withoutgovernmental of theSyriancriminalcodeprovides forasentenceofuptothree at all. to disruptsuchgatheringsorprevent themfrom occurring tooksteps prior approval. Inmanyinstances, thegovernment meetings withoutregisteringorobtaining withthegovernment several domestichumanrightsandcivilsocietygroups held and tosubmitlistsofallparticipants.Despitetheserestrictions, that wishtoholdlectures and seminarstoobtainpriorapproval requiresThe government political forumsanddiscussiongroups interrupted meetingsofhumanrightsandcivilsocietyactivists. persons. Inthepastyear, routinely prohibited thegovernment or required fordemonstrationsoranygatheringofmore thanthree be exercised inpractice.Permissionfrom theMinistryofInterior is Law provisions supersedethisright,however, anditthuscannot The constitutionprovides for therighttoassembly. Emergency Violations ofFreedom ofAssembly LIFE OFASSOCIATIONS Parts Two 2008, theadministrativetribunal reach aconclusion.On29July be submittedtothecourt that fi ve consecutivereports 2007, astheMinistryrequested activists aswellhumanrightsdefenders.Thearrests targeted democracy groups inSyria, whosemembersincludepolitical Declaration, acollectivemovementofoppositionandpro- resulted inthecreation oftheNationalCouncilDamascus The meeting,whichbrought together 163personsinDamascus, and association. arrests were adirect violationoftherighttofreedom ofassembly rights andensures freedom ofspeechandassociation. These the establishmentofademocraticsystemthatrespects citizens’ together awidecoalitionofpoliticalreform activistscallingfor Change Initiativeon1December2007.Thisbrought by theDamascusDeclarationforDemocraticandNational activists across Syriaasareaction toameetingorganised launched acampaignofarrests, rounding upmore than40 On 9December2007,theSyrianStateSecurityServices Der Elzor. high costoflivingin“SugaerJazera,”avillageabout20kmfrom security servicesinDerElzorcityduringaprotest againstthe On 17May2008,some20Syriancitizenswere arrested bythe highway. protesters, drove themoutsideoftown,andleft on the fi ve Yekiti partymembers.Securityservicesarrested allofthe HumanRightsDayandtoprotestInternational thedetentionof 200 peopleinfront oftheSecurityStateCourttomark Azadi andFuture) organisedademonstrationofapproximately On 17December2007,three Kurdish oppositionparties(Yekiti, were detainedbythesecurityforces. reported death,fourprotestors were woundedanddozens Iraq. According tohumanrightsorganisations,there wasone demonstrating againstapossibleTurkish incursionintonorthern to dispersethousandsofprotestors inQamishli,whohadbeen On 2November2007,securityforces fi red bulletsandteargas didnotchargethem. government them outsidethecity, where theywere leftonthehighway. The however, securityservicesarrested alloftheactivistsanddrove of EmergencyLaw. Before theprotest couldbeorganised, attempted tostageaprotest inDamascusagainst44years included RiadSeif,HindLabwani,SuheirAtassiand34others, On 10March 2007,agroup ofcivilsocietyactivists,which rights lawyerHaithemal-Maleh. which wastotakeplaceintheoffi ces ofthewell-knownhuman the HumanRightsAssociationofSyriafrom holdingameeting, Thus, on2June2007,forexample,securityservicesprevented 2 ‘Damascus Spring’fi gurehead, Mr Talal Abu Dan, artist, andMrMarwanal-Esh. Rights Association inSyriaandafoundingmemberoftheCommitteesforRevitalisingCivil SocietyinSyria, MrRiadSeif, form intellectual, MrFayezSarah, journalistandfoundingmemberoftheCommitteesforRevitalisingCivilSociety inSyria, MrMoha political activist, Mr Ali al-Abdullah, memberoftheCommitteeforRevitalisation ofCivilSocietyinSyria, Dr Walid Bunn Freedoms andHumanRightsinSyria, Mr Akram alBunni, memberandfounderof theCommitteeforRevitalisationofCivilSoci 1 Formoreinformation, see The activistskeptindetentionare: Dr Ahmad Tohme, apoliticalactivist, MrJaberal-Shoufi , memberoftheexecutiveboardo http://www.euromedrights.net/pages/511/news/focus/57878 Human Rights( Mohanad AlHosainey, HeadoftheSyrianOrganisationfor President oftheKurdish CommitteeforHumanRights, and from leavingthecountry. Amongthemwere RadifMostafa, 2008, Syrianauthoritiesprevented sevenhumanrightsactivists Chairman oftheArabOrganizationforHumanRights.InMay the DefenseofHumanRightsinSyria,andRasemSuleiman, leaving were MustafaOso,HeadoftheKurdish Organizationfor for varioustrainingsandmeetings.Amongthoseprevented from prevented severalhumanrightsactivistsfrom travellingabroad On 24November2007,forexample,theSyriangovernment at regionalworkshops. andinternational preventsfrom theirattendance leavingSyriaandthegovernment outside thecountry. Allhumanrightsactivistsare nowbanned rights defenderssoughttoattendworkshopsandconferences and closesurveillancetheimpositionoftravelbansifhuman harassment ofdomestichumanrightsactivists,includingregular All throughout thelastyear, reports havedocumentedgovernment Meetings Rights Defendersfrom ParticipatinginInternational Freedom ofMovement:Travel BansPreventing Human two andahalfyearsinprison. Hurani wassenttoDumawomen’s prison. activists were alltransferred toAdracentralprison,andMsal- stipulate prisonsentencesofatleastsevenyears.Thedetained encouraging confl ict amongsects”).Someoftheseprovisions (“any action,speech,orwritingaimedatsectarianincitement known tobefalseorweakeningnationalsentiment”)and307 (“weakening nationalsentiments”),286(“spreading information breaching provisions oftheSyrianCriminalCode,namely285 kept indetention,and,on28January2008,were chargedwith to theCouncilofDamascusDeclaration,however, were all participantsofthemeeting.Thosewhohadbeenelected windpipe. Ali Abdullahwasbeatensoseverely thathenowhasaholeinhis lawyers, theyhavebeensubjectedtotorture. Writer andactivist migration, refugees andasylum seekers. prevented from attendingtheEMHRNmeetinginMorocco on

Initiative on1December2007. Declaration forDemocraticandNationalChange reaction toameetingorganisedbytheDamascus up morethan40activistsacrossSyriaasa Services launchedacampaignofarrests,rounding On 9December2007,theSyrianStateSecurity 2 On29October2008,theactivistswere sentencedto Sawasiah ). On9October, MrBayassiwas i, political activist, Dr Yasser Tayser Aleiti, an mmed HajDarwish, memberoftheHuman er memberoftheSyrianparliamentand f theCommitteesforDefenceof ety inSyria, DrFidaal-Hurani, 1 According totheir 45

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

Freedom of Association in the Palestinian Territories

by Nasser Rayes

RECOMMENDATIONS

The Palestinian authorities are urged to:

1. With regard to the political situation and the general framework of democracy and human rights: • Protect civil society from the conﬂ ict between the Fatah and Hamas movements, and stress the independence of civil society and the vital role played by NGOs in providing social, economic, developmental and cultural services; • Call upon both Fatah and Hamas to stop the campaign against civil society organisations and to rescind all measures of closure and conﬁ scation against these organisations, and call for the immediate release of all political detainees in the West Bank and Gaza Strip; • Immediately lift the ban and restriction on the freedom of movement imposed on human rights defenders, which prevents them from implementing their legitimate activities and promoting and protecting human rights.

2. With regard to the legislation and practice related to freedom of association: • Ensure that the registration procedure for associations is limited to ascertaining that the requirements of the law have been met; • Put an end to the interference of the security services in the activities of associations (e.g. authorities’ attendance of meetings); • Ensure associations’ right to open a bank account without prior license from the Ministry of Interior; • Ensure the right of members of associations to travel and to participate in international meetings.

Introduction

POLITICAL AND LEGAL FRAMEWORK AND which was formed in the Gaza Strip under the leadership of Mr THE HUMAN RIGHTS SITUATION Ismaeel Haniyyeh1 after Hamas took control; and the Palestinian National Authority, i.e. the elected authority established in On 12 June 2007, Izz Eddine Al-Qassam Units, the military wing the West Bank under the leadership of Mr Mahmoud Abbas. of the Islamic resistance group Hamas, launched a sweeping Both systems exercise judicial, legislative, as well as executive attack on the premises and institutions of the Palestinian powers. Authority in the Gaza Strip. Hamas forcefully took control over the Gaza Strip, which has remained under its administration Hamas’ forceful take-over of government control in the Gaza since then. Strip not only affected the political system, however, but the political, legal and institutional changes in the Palestinian lands Perhaps the most important outcome of this attack on the also undermined human rights and freedoms and disrupted political, social and legal situation in Palestine was the creation the judicial system and its various components. The situation of two parallel power systems, where Palestine is governed and deteriorated alarmingly with regard to civil, political, economic, controlled by two separate authorities: the de facto authority, social and cultural rights and freedoms:

1 The Prime Minister who was dismissed by the Palestinian President by a Presidential Decree issued on 14 June 2007.

47 Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRY REPORTS 48 6. 5. 4. 3. 2. 1. Judicial AuthorityintheGazaStrip. other workpertainingtotheadministration andsteeringofthe judicial system,supervisingappointments,promotions, and Council isresponsible for administering andsteeringthe totheHigherJudicialCouncil.TheJustice alternative AHigherJusticeCouncilwasformedintheGazaStripasan movement, Fatah. anniversary oftheestablishmentPalestinianliberation Palestinian leaderYasser Arafat,andthecelebration ofthe march organisedinNovember 2007inmemoryofthelate via ademonstration.Furtherexamplesare provided by the their righttopeacefulassemblyorexpress theirviews used excessiveforce toprevent Palestiniansfrom exercising and theQassamUnitsintervenedonseveraloccasions was similarintheGazaStrip,where HamasExecutiveForces of thebeatings,and22otherswere arrested. Thesituation shot andkilled,22participantswere woundedasaresult severely beatcitizens.HishamNa’imYousef Al-Barad’iwas conference. Theforces fi red atthedemonstratorsand in amarch inHebron whowere protesting againstthesame same day, PalestinianSecurityForces attackedparticipants protest theAnnapolisConference intheUnitedStates. The dispersed apeacefulassemblythatwasheldinRamallahto November 2007,PalestinianpoliceandSecurityForces using force, anddispersedpeacefulassemblies.On27 12. PalestinianSecurityForces intheWest Bankinterfered, by theBasicLawand1998ofPublicAssembliesNo. practicing theirrighttopeacefulassembly, whichisguaranteed On severaloccasions,Palestinianswere prevented from to theirpoliticalaffi liations. Gaza Stripwere dismisseddue forces intheWest Bankand were membersofthesecurity Thousands ofemployeeswho within theWest BankandtheGazaStripwere confi scated. ransacked anddocumentsbelongingtoseveralassociations movement were prevented from working.Offi ces were or founderswere membersofFatahoranyotheropposition dissolved. IntheGazaStrip,associationswhosemembers board membersorfounderswere membersofHamas,were members. DozensofsocietieswithintheWest Bank,whose Strip were dissolvedduetothepoliticalaffi liations oftheir Dozens ofregistered societiesintheWest BankandGaza West BankandGazaStrip. humiliation, whichledtothedeathoftwodetaineesin of prisonerswere exposedtotorture, maltreatment and Torture spread withindetentionandarrest centers.Dozens members ofFatahandalloppositionmovements. Hamas launchedawide-scalecampaignofarrests against people whoallegedlywere membersofHamas.InGaza, the West Bankbeganarresting anddetaininghundreds of political affi liation wasrevived. Palestiniansecurityforces in Thepracticeofarrests anddetentionsonthegrounds of between FatahandHamas. territories isdependentonthepoliticaldialogue The humanrightssituationinthePalestinian reconciliation. are noinitiativestowards fi nding asolutionandachieving between FatahandHamas.Indeed,humanrightsviolations Palestinian territoriesisdependentonthepoliticaldialogue It isimportanttonotethatthehumanrightssituationin 8. 7. judicial persons,enjoyingan independent fi nancial status, 2000), “TheAssociationsandOrganizations are independent Associations andCommunityOrganisations(lawNo.1,year According toArticle7of the PalestinianLawofCharitable should beconsidered registered inaccordance with thelaw. passes andnodecisionistaken,thesocietyorassociation two monthsfrom thedateofsubmission.Ifappointedperiod with theregistration conditions withinaperiodnotexceeding then issueshisdecisionabouttheapplicationform’s compliance members ofthefoundingcommittee.TheMinisterInterior and accompaniedbythree copies ofthestatutes,signedby to register andsignonbehalfoftheassociationorsociety, be signedbyatleastthree ofthefounders,dulyauthorised department attheMinistryofInterior. Theapplicationmust application, fulfi lling allthenecessaryconditions,torelevant the foundersofasocietyorassociationmustprovide awritten Law ofCharitableAssociationsandCommunityOrganisations, licensing anddeclarationsystems.According tothePalestinian is subjecttoaregistration systemwhichdiffers from the The establishmentofanassociationinthePalestinianterritories FORMATION OFASSOCIATIONS Part One being publishedinGaza. Palestine Television andprevented Fatahnewspapersfrom the West Bank,whileHamastookovertheheadquartersof Hamas televisionstationsandnewspaperswere closedin were dismissedandreplaced bymembersofHamas. Units andtheExecutivePower. Inaddition,senioremployees Authority andusingthemasheadquartersforAl-Qassam of allthesecurityandmilitaryheadquartersPalestinian This wastoprevent theoffi cial leadershipfrom takingcontrol and cutoff itsexistingconnectionswiththeoffi cial leadership. Gaza StripformedanewleadershipforthePalestinianpolice Hamas anditsExecutiveForces. Thedefactoauthorityinthe and from grantingtheirauthoritiestothemilitaryaffi liated to were prevented from conductingtheiractivitiesinGaza, The militaryandsecurityinstitutionsofthePalestinianAuthority and increase whenthere between thetwomovements, and diplomaticactivities mediation orrenewed political decrease duringtimesof a registration application. appeal anydecisionpertainingtodissolutionortherejection of to thePalestinianjudiciary, withintheperiodstipulatedbylaw, to individual whoseapplicationforregistration isrejected mayturn stipulates thatanyadministrativedecisioncanbeappealed.An Palestinian law, andthePalestinianBasicLawinparticular, associations. Security Forces andhavethusfarbeenunabletooperateas groups hadnotyetreceived aresponse from thePreventative Closer examinationofthisissuerevealed thatseveralPalestinian founders andmeetwiththempriortograntingapproval. Force nowgobeyondmere licensing;itmayalsosummonthe is stopped.Theprerogatives ofthePreventative Security approval isnotgrantedforanyreason, theregistration process Forces toissuearesponse. Iftheresponse isdelayed,orif of thefounders.ItusuallytakesseveralmonthsforSecurity General Intelligencetoobtainsecurityclearanceforthenames Interior addresses thePreventative SecuritySystemandthe for registration, theassociationsdepartmentatMinistryof soon asthefoundersofassociationsubmitapplication fact thatthisprocedure isnotstipulatedinPalestinianlaw. As Interior consultsthePalestinianSecurityForces, despitethe an association’s applicationforregistration, theMinistryof association isgrantedonlyaftereightmonths.Before approving four tosixmonths.Insomecases,approval forregistering an the periodstipulatedbylaw;infact,itusuallytakesbetween In practice,itisrare foranassociationtoobtainapproval during registration procedures.” They maynotpracticeanyoftheiractivitiesbefore completing upon registration inaccordance withtheprovisions ofthisLaw. association inRamallahAugust 2007,entered Al-Wurood The Preventative SecurityForces shutdownSuna’Al-Haya should onlybepresentedministry. to theconcerned despite thefactthat-underPalestinianlawthesereports that associationsprovide a fi nancial andadministrativereport, letter from theMinistryofInterior. TheMinistryofInteriorrequests open abankaccountorappointsignatorieswithoutanadvance in meetingsandinsistonattendingthem.Anassociationcannot In spiteofthis,thedirectorates oftheMinistryInteriorinterfere appointment ofrepresentatives tosignonbehalfofassociations. the meetingsofassociations,intheirelections,and 2003, prohibit offi cial andunoffi cial bodiesfrom interferingin issued bydecree No.9oftheCouncilMinistersforyear The PalestinianAssociationsLawanditsExecutiveList, LIFE OFASSOCIATIONS Part Two

even iftheseinvolvecriticismofthePalestinianAuthority. reports oftheseorganisations,aswelltheirvariousactivities, implemented byassociations.Italsotransmitsandcoversthe It isworthnotingthatthepress generallycoversmostactivities and forced someassociationstochangetheirdirectors. Security Forces alsointerfered intheselectionofboard members qualifi cations andotherpersonalinformation.ThePreventative further ordered employeestolistthenamesoftheirfriends, names oftheiremployeesandreligion andsalaries.They forms toseveralotherassociations,requesting themtolistthe In addition,inJune2008,theSecurityForces sentspecial computers andcertaindocuments. the Suna’Al-HayasocietyinRamallah,andconfi scated their associations, suchastheIslamicCharitableSocietyand Preventative SecurityForces, entered thepremises ofseveral As mentionedabove,theSecurityForces, andinparticularthe denied judicialreview. warrants issuedbytheCivilPublicProsecution, andwere The aforementioned personswere arrested withoutsearch for arrests inaccordance withPalestinianprocedural legislation. and conditionsofarrest anddetentionorthelegalgraceperiods the PalestinianSecurityForces didnotrespect thestandards detained bythePreventative SecurityForces. Itwasnotedthat case withtheIslamicCharitableSociety, whoseemployeeswere belonging toHamaswere interrogated andarrested, aswasthe association inthecityofRamallah.Membersassociations the schoolaffiliated with thelatter. Theyalsoentered Al-Khansa’a Society inMarch 2008,andarrested anumberofemployeesin association inDecember2007andtheIslamicCharitable decisions oftheMinisterInterior todissolvetheassociations Several lawsuitswere fi led withthecourtsagainst founders belongedtoHamas. dissolved forpoliticalreasons, i.e.onthegrounds that their West Bank.Closerreview indicatedthatmostofthemwere of Interiorissuedadecisiontodissolve103associationsinthe At thebeginningofSeptember2007,PalestinianMinister ASSOCIATIONS DISSOLUTION ANDSUSPENSIONOF Part Three 103 associationsintheWestBank. Minister ofInteriorissuedadecisiontodissolve At thebeginningofSeptember2007,Palestinian 49

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRY REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRY REPORTS 50 respect forthelaw. Palestinian judiciarydemonstratedhighintegrityandabsolute dissolve three oftheassociationsinquestion.Inthisrespect, the Palestinian judiciary’s initialrulingssuspendedthedecisionsto the AssociationofAl-Aghwar(theJordan Valley) Refugees.The Palestinian HealthAssociation,theAl-Wurood Associationand of theMinisterInteriortodissolveTeachers’ Union,the - Palestinesectionbrought fourcasesagainstthedecision organisations Al-HaqandDefenceforChildren International mentioned above.Lawyersfrom thePalestinianhumanrights Freedom of Association in Tunisia

by Sihem Bensedrine

RECOMMENDATIONS

The Tunisian government is urged to:

1. With regard to the political situation and the general framework of democracy and human rights: • Modify the provisions of the Law to Fight Terrorism and Money Laundering of 10 December 2003, in order to ensure that peaceful opposition organisations and their activities are not falsely accused of participating in terrorism; • Comply with the recommendations of the UN Human Rights Committee, which calls on the authorities to “take steps to put an end to acts of intimidation and harassment and to respect and protect the peaceful activities of human rights organizations and defenders. Reports of acts of intimidation and harassment should be investigated without deladelay”.

2. With regard to the legislation related to freedom of association: • Reform the Law on Associations and incorporate internationalternational standards on the right to free association, particularly ensuring: • The freedom to establish associations simply by notifiotifi cation, without a need for prior license;e; • That judicial tribunals have exclusive competencee to dissolve or suspsuspend an association; • The right of associations to receive the necessaryry funds for fi nancinnancing their activities without prior license, as long as all foreforeign exchange and customs laws are satisfi ed.

3. With regard to the practice related to freedom of assassociation: • Put an end to police surveillance and intimidationation of association members; • Guarantee NGO members the right to privacy and outlawoutla and sanction any inappropriate restrictionsrestrictio on their communications; • Put an end to all restrictions limiting the free movementovement of membmembers of associations; • Initiate without any delay an independent investigationtigation into all seriousserio human rights abuses,es, publish the results, and punishp those found to be responsible.

Introduction

POLITICAL AND LEGAL FRAMEWORK AND the HR Council (April 2008) and the review of the ﬁ fth periodic THE HUMAN RIGHTS SITUATION report of Tunisia before the Human Rights Committee (March 2008). With regard to freedom of association and assembly, From September 2007 to September 2008, no legal or regulatory the Human Rights Committee recommended in its concluding measures were taken to improve the situation of freedom of observations: “The State party should take steps to put an association in Tunisia; no new independent association has been end to acts of intimidation and harassment and to respect and authorised either. Nevertheless, the Tunisian state has twice protect the peaceful activities of human rights organizations and had to account for its human rights record before two United defenders. Reports of acts of intimidation and harassment should Nations organs: during the universal periodic review (UPR) of be investigated without delay. The state party should ensure that

51 Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRY REPORTS 52 2 1 that, during hisvisitinApril(hissecondthree months),affi rmed illustrating thistrend wasthat ofFrench president Sarkozywho, related anddemocracy. togovernance Thebest example the fi ght againstterrorism, whilecompletelyignoring problems Tunisian capitaltocomplimentBenAlionhistoughstancein (e.g., thoseofSpain,Italy, Portugal,France,etc.)cametothe its policies(seeIFEXresponse). ManyEuropean heads of state and todeliveraspeechinwhichhecongratulatedTunisia for to Tunis tosponsoraconference onthefi ght againstterrorism Ban KiMoon,Secretary-General oftheUnitedNations,came by itspartners.Thisapproach wascrowned withsuccess: Mr justify itsdemocraticdefi cit andseekincreased acceptance European countries,byreviving thespectre ofterrorism to offensive, whichwasinparticulardirected towards the 2007, theBenAliregime diplomatic launchedaninternational After celebratingits20thanniversaryinpoweron7November However, ithasnotmetsincethen. Association Agreement since2005,wasfi nally established. provided forbytheENP November 2007,theSub-CommitteeonHumanRights,abody missions inTunisia according tothetermsoftheirmandates.In - includingtheSpecialRapporteuronTorture -tocarryout in NewYork andGeneva,itinvitedtheUNSpecialRapporteurs inspect Tunisian prisons;and,duringtheplenaryUNsessions Against Women; itinvitedtheNGOHumanRightsWatch to the ConventiononEliminationofAllFormsDiscrimination ratifithree issues:thegovernment ed theOptionalProtocol to motivated Tunisia toimprove itsimagebycommittingitselfto It is,however, worthnotingthatthesetwoUNstatements and ofassociation”. attherestrictionsimposedonfreedomsofassembly “concerned Representative oftheSecretary-General, HinaJilani,remained on 3March 2008,theSpecial to theUNHumanRightsCouncil defenders inTunisia, submitted the situationofhumanrights In addition,inthereport on and 22oftheCovenant.” demonstration arecompatiblewiththeprovisionsofarticles19,21 any restrictionsimposedontherightstopeacefulassemblyand CenterforInformation, Training, StudiesandDocumentation on Associations. EuropeanNeighborhood Policy into anof At customsattheportofTunis,theywerelocked several bruisesonherbody. She sustaineddoublewristandelbowsprains “Today, thespaceforfreedomsisdeveloping.Theseare fi ce andbeatenbythepoliceof

1 withintheframeworkofEU-Tunisia in Tunisia. improve thesituationoffreedomassociation measuresweretakento no legalorregulatory From September2007to2008, ﬁ cers.

association hasobtainedanauthorisationsince1989,after NGOs. Noautonomous in oppositiontothesegovernmental weregraduates, prisoners,writersandjournalists established Autonomous associationsdefendinghumanrights,unemployed network. proving theexistenceof a free anddynamiccommunity are brandishedbefore organisationsastrophies international authorities, theyactinvariouseconomicandsocialfi elds and realm forpoliticalclientelism. Created attheinstigationof the government’s instrumentalizationofassociationsasanother information aboutthereality of associations,thisfi gure reveals associations are effectively autonomous.Farfrom providing today (asofApril2008;IFEDA According tooffi cialstatistics,9,205associationsexistinTunisia 93-80 of26July1993). consultation oftheMinisterInterior(Art.3OrganicLawNo. Tunisia issubjecttopriorauthorisation,adoptedbydecree after establish theirmainorsecondaryheadquartersdelegationsin prior authorisation.Similarly, authorisationforforeign NGOsto on politicalparties,whichsubjectstheirestablishmenttohis years. TheMinisterisgrantedthesamepowersbynewAct is anoffense punishablebyaprisonsentenceofuptofi ve an association,andstipulatesthatthelackofauthorisation deny thereceipt thatisessentialtothelegalestablishmentof grants theMinisterofInteriordiscretionary powerstogiveor transformed itintoasystemofpriorauthorisation.Thislaw the authoritieshavemisusedthisdeclaratorysystemand offi cially submittedtothecompetentauthorities.Inpractice, after three monthsfrom thedatewhendeclarationhasbeen and provided thatanassociationbedeemedlegallyestablished a systemrequiring priorauthorisationwithadeclaratoryone, No. 59-154of7November1959onassociations,replaced Organic LawNo.88-90of2August1988,amendingAct FORMATION OFANASSOCIATION Part One judge thesecasesduringthejudiciary’s summerbreak. rights” perspective.Allofthisservedasanencouragingsignalto for theMediterranean(UfM)launchedinJulyignores the“human encouraging signalsthatIwishtowelcome.” 2 chamber wasestablishedto “terrorist”) trialsandaspecial new waveofpolitical(so-called rights defenders.There wasa its policyofrepression ofhuman tofurtherpush the government fi gures). Lessthan10ofthese Similarly, theUnion Press, PublishingandCreation( 3 CIJA), theNationalCommitteeagainstNormalisation( ( Torture ( du travail other examples. from theMinistryofInterioron2March 1999.There are many February 1999,andthenreceived arefusal withnoexplanation December 1998,received areceipt certifyingsubmissionon26 pour leslibertés examples: TheNationalCouncilforFreedoms ( the legalreceipt. Thefollowingcasescanbementionedas Constitution, althoughtheyfulfi lled therequirements toobtain were notgrantedtherighttoactlegally, asguaranteedbythe développement the (articles 21and22oftheCovenant)”. have encounteredimpedimentswhenapplyingforsuchregistration whose objectivesandactivitiesarenotinviolationoftheCovenant practice, severalassociationsfortheprotectionofhumanrights have beenregisteredoffi cially bytheauthoritiesandthat,in reports about The HumanRightsCommitteeoftheUNwasconcerned the public andare verymuchlimited intheircapacitytoact. these associations,whichremain distancedfrom the general suspicion thatdetersmanyvictimsofviolationsfrom approaching or from openingabankaccount, butitalsocreates an aura of of alegalstatusnotonlyprevents anNGOfrom havinganoffi ce work inpublicandare present inthepublicspace.However, lack These non-recognised groups operateintheopen;they talkand have proof ofsubmittingtheirstatutes. appeal withtheadministrativetribunal,sincetheydonoteven fi les. Theassociationsare thusdeprivedoftheirrighttofi le an the offi ces oftheadministrationwhere theyhavetosubmit their NGOs thatare suspectedofbeingindependentfrom accessing tribunal. Butsincetheendof2001,apoliceroadblock prevents are allowedtofi le an and whoare prevented from accessingtheadministration Those whoare notafforded achancetofulfi l therequirements of practicalresistance, tocircumvent therestrictions theyface. guarantees forfreedom ofassociation,aswellvariousforms have developedsurvivalstrategiesanduselegalinstitutions and canbesaidtoabusinghisauthority. Civilsocietyactors in theabsenceofgrounds, he violatestheprovisions ofthelaw In reality, theMinisterofInteriormustgivegrounds foranyrefusal; registration ofcivilsociety, unionsandpoliticalparties” the UniversalPeriodicReview any rejectionoftheirapplications” they shouldbeprovidedwitheffectiveandpromptrecourseagainst party shouldensurethatsuchorganizationsareregistered,and Amicale nationaledesanciensrésistants, The Unionforan InternationalDevelopment Alternative ( Association tunisiennedesfemmesdémocrates Association delafemmetunisiennepourrechercheetle Association deluttecontre latorture ), theInternational Association fortheSupportofPoliticalPrisoners ( “that a very limitednumberofindependentassociations “that avery (AFTURD)were authorised.Severalassociations 3 , CNLT), whichstarteditsactivitieson10 ultra vires Observatoire pourlalibertédepresse,Observatoire del’éditionetlacréation, “encouragesTunisia tofacilitatethe ANAR), andLawyers( theCentreforIndependenceofJudiciary appealwiththeadministrative , ALT), the Association fortheDefenseofPoliticalPrisoners( , whiletheWorking Group on Itrequested that Comité NationalcontrelaNormalisation Rassemblement pour une alternative internationale dedéveloppement, internationale Rassemblement pourunealternative Conseil National (ATFD) and . “the State Association internationale desoutienauxprisonniers politiques,Association internationale 31 was allowedtoorganiseareception ontheoccasionofits from entering.There wasasingleexception,whentheLTDH in front oftheoffi ce andsystematicallyprevent anyoneelse authorised tomeetthere. Policeoffi cers are constantlypresent is onlyopentomembersoftheSteeringCommittee,whoare meetings,anditsmainoffiauthorised toholdeveninternal ce face severaltrialsthataimedtoparalyseit.Itssectionswere not congress inSeptember2005.Inaddition,theLTDH hashadto rights NGO,whichwasforcibly prevented from holdingitssixth particularly seriousinthecaseofLTDH, theoldesthuman in theiractivitiesandrestrictions ontheirabilitytoact.Thisis des droitsdel’Homme Independent, recognised NGOs,suchasthe Restrictions ontheFreedom ofAssembly other restrictions incarryingouttheirwork. association, autonomousassociationsalsofaceanumberof In additiontotheproblems related toregistering anindependent LIFE OFANASSOCIATION Part Two world, andespeciallywithhumanrightsnetworks,leavingthem reduced thecapacityofNGOstocommunicatewithoutside impossible. Thismanipulationofmailboxeshasconsiderably documents anddownloadingattachedfi les havebothbecome message disappearwhentheyclicktoopenthem,andattaching very commonforhumanrightsdefenderstoseetheiremail screening websitesandmonitoring mailboxes.Ithasbecome for theirpart,developedevenmore sophisticatedtechniquesfor on humanrights.Duringthecourseof2008,authoritieshave, releases informaboutviolationsandreports documentattacks which hasbecometheirmainspaceforexpression. Dailypress Independent associationsmakeheavyuseoftheInternet, Communication Arbitrary RestrictionsonAssociations’Freedom of this meetingaswell. repression oftheminebasinGafsa;authoritiesobstructed a meetingatitsheadquartersinsolidaritywiththevictimsof offi ces. Inaddition,on11July2008,theLTDH triedtoorganise of theAfricanCommissionHumanRightsatLTDH’s lutte contrelatorture de soutienauxprisonnierspolitiques l’édition etdelacréation of theATFD, CNLT, include: On27June2008,thepoliceprevented representatives st anniversaryinMay2008.Recentexamplesofrestrictions , CNN), theDemocraticConfederationforLabour( OLPEC), theNational Association ofFormerMembers oftheResistance “Liberté etéquité” Observatoire pourlalibertédepresse, Observatoire (ALT) NGOsfrom meetingarepresentative Centre pourl’indépendancedelajusticeet desavocats, (LTDH) andtheATFD, faceinterference (OLPEC),the ), etc. RAID), fortheFreedomof theObservatory (AISPP) and AISPP),the AssociationAgainst Association internationale Association internationale Confédération démocratique Ligue tunisienne Association de 53

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRY REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRY REPORTS 54 case haddisappeared from theregistry. Itwasnowsupposedly and thepresident ofthechamber, itappeared thattheCNLT’s The CNLT wasnowinformedthat,aftercheckswiththeregistry the third timetothefi rst president ofthe TA through itslawyer. to aconclusion.On17October2007,theCNLT appealedfor chamber attheTA toscheduleahearingandbringthecase appealed forthesecondtimetopresident oftheresponsible September 2007,afterawaitofalmostsevenyears,theCNLT pass itontotheotherchamberasprovided bythelaw. On28 However, thefi rst president oftheTA keptthefi le andfailedto the caseshouldhavegonetoanotherchamberforjudgment. the caseofCNLT, submittedin1999,anddecidedthat Tribunal (TA), underreference number177876,investigated On 17November2001,the5 medical examination,theresults ofwhichare stillpending. Nevertheless, inMay2008,theinvestigatingjudgeordered a and deprivedhimofhisrighttoreceive medicaltreatment. response, theauthoritiesimposedatravelbanonAliBenSalem to informit,within90daysofthisdecisionbeingtransmitted” those responsibleforthecomplainant’s treatmenttojustice,and investigation intotheincidentsinquestion,withaviewtobringing just compensation.ItinvitedtheTunisian Stateto impartial investigationandtoensure thatthevictimbegranted treatment andobligedtheTunisian authoritiestoconductan that hehadindeedbeensubjectedtoinhumananddegrading station ofElManarinApril2000.ThedecisionCAT assumed in May2005,regarding “torture andill-treatment” atthepolice (CAT) replied tohiscommunicationNo.268/2005,submitted November 2007,theUnitedNationsCommitteeAgainstTorture section oftheLTDH andfoundingmemberoftheCNLT). On7 defender AliBenSalem(President oftheANAR,Bizerta explanation. Themostblatantcaseisthatofhumanrights an investigation,whichisthensuddenlyhaltedwithoutany no avail.Inthebestcasescenario,prosecutor starts forms ofharassmentandinterference intheirwork,butto Human rightsorganisationshavecomplainedaboutvarious Denial ofAccesstoJustice of CNLT) bytheoffi cial phoneprovider, Tunisie Télécom. accessisblockedwithoutexplanation(inthecase and Internet arrive asblankdocuments(inthecaseofATFD andtheLTDH), broad campaign.Moreover, NGOs’faxesare oftendivertedor 2 September, afterhumanrightsassociationshadlauncheda blocked formanyweeks.Itonlybecameaccessibleagainon where humanrightsdefendershadcreated profi les, was networking websites.Forexample,theFacebookwebsite, on freedoms, theauthoritiestrytocontrol user-driven andsocial very isolated.Inadditiontoblockingwebsiteswithinformation assaulted bythedirector oftheMornaguiaprisonwhilehewas visitingoneofhisclients. prosecutor aboutpolice violenceandrestrictionshehasfaced inhisworkasalawyer. There neverwasafollow-uponthecomp a formalcomplaint, buttheinvestigationisstill “ongoing”. Overthecourseofmorethanfouryears, lawyerRaouf Ayadi has 4 On 31 August 2007, therewasafi re attheoffi ce oflawyer Ayachi Hammamiandthelawyerfordefenseaccusedspecialp th chamberoftheAdministrative “conclude the . In cases in2006.There are otherexamplesaswell. the CNLT case,andthattheTA begananewseriesforongoing down inallthecasesof17000series,withexception response. Itisworthnotingthatjudgmentshavebeenhanded Article 49ofAct401972.To thisdate,hehasnotreceived a be liftedandthatthecaseruledon,inaccordance with case. Inhisappeal,thelawyerrequested thatthesuspension impossible toscheduleahearingreach ajudgmentinthe representative.in thehandsofagovernment Itwastherefore ( The representatives ofthelegitimateboard oftheAMT defenders. linked totheexercise oftheirmandatesashumanrights abroad orwithinTunisia itself.Theserestrictions were directly on theirfreedom ofmovementandwere bannedfrom travelling Numerous humanrightsdefendershavesuffered restrictions Obstruction ofFreedom ofMovement receive themoney. the LTDH felloutsidethiscategoryandthuswasnotentitledto recognised asbeinginthe“nationalinterest”, andarguedthat (1959) andthedecree of8May1922oncharitableassociations Tunisian authoritiesblockedthefundsongrounds ofAct154 for DemocracyandHumanRights(EIDHR)wasblocked.The the LTDH withintheframeworkofEuropean Instrument of 2006,thesecondinstalmentEUfundsgrantedto In 2008,theLTDH stillcouldnotaccessitsfunds.Attheend Blocking ofFunds and memberoftheCNLT, from travellingtoCairo toobserve prevented thelawyerAbbou, aformerprisonerofconscience leave thecountry. Similarly, on23October 2007,border police to obtainpriorauthorisationfrom theMinistryofJusticeto organisation andthestatusofjudiciaryrequires magistrates that Article39ofActNo.67-2914July1967onthejudicial and aboard imposedbytheauthorities.Itisworthrecalling question ofdoublerepresentation through alegitimateboard des Magistrats UnionofMagistrates( of theInternational 2008, theywere prevented from participatinginthemeeting that everycitizenshouldnormallyenjoy. Thus,on16February the magistrateswere deprivedoftherighttotravel,a by theMinistryofJustice).Besidesfacingdisciplinarysanctions, suffered aputschinDecember2004,whichhadbeeninstigated right toexistasalegitimately-electedassociation.(AMTalso meetingswhereinternational theywere invitedtodefendtheir prevented from leavingTunisia toparticipateinvarious “Association desMagistratsTunisiens” , UIM)inRome,whichwastoexaminethe lodged severalcomplaintswiththedistrict laints. Mostrecently, Mr Ayadi was olice services ofarson.olice services Helodged ) havebeensystematically Union Internationale Union Internationale 4 the ALTT, respectively, were violentlyassaulted,draggedonto et desdroitsdel’HommeenTunisie and HumanRightsinTunisia ( Secretary GeneraloftheCommittee fortheRespectofLiberties On 18February2008,MrsFatmaKsilaandSamiaAbbou, Physical Assaults sentenced toeightmonthsinprisonon14August2008. was brought before thecriminalcourtofGafsaon31July and She where ZakiaDhifaouihadspokenearlierinthemorning. peaceful gatheringinsolidaritywiththeprisonersRedeyef, spokesperson oftheminebasinmovement.Thiswasaftera FDTL), wasarrested inRedeyefatthehomeofAdnenHajji, and Freedom ( section oftheLTDH andoftheDemocraticForumforLabour On 27July2008,ZakiaDhifaoui,memberoftheKairouan public placeandforbreaching publicmorality. “Equité etLiberté” Sadkaoui andKhaledBoujemaa,membersoftheassociation AISPP) andsix-monthsuspendedprisonsentences(Faouzi imprisonment (OthmanJemliandAliNeffati, membersofthe the Bizertacantonalcourtsentencedthemtosixmonths’ of 25Julywhiletheywere inacoffee house.On5August, public liberties.Fouractivistswere arrested intheafternoon the absenceoftermlimitsforpresidency andcalledfor gathering infront ofthetown hall,shoutedslogansprotesting rights defendersandpoliticalactiviststookpartinapeaceful On 25July, ontheoccasionofDayRepublic,human with policeorders”. imprisonment bytheArianacantonalcourtfor“refusal tocomply was imprisonedand,on6August,sentencedtotwomonths’ Following hisarrest byatraffi c patrol, MohamedBenSaid Imprisonment restricted intheirfreedom ofmovementduringtheyear. these restrictions. Manyotherhumanrightsdefenderswere also Yet, atnopointhadMrAbboubeennotifi ed ofoneoranother him/her inapublicserviceorprivatebusiness(Art.357(b)). her underhousearrest (Art.357(a)),orbyautomaticallyplacing restricted atthetimeofhis/herrelease, eitherbyputtinghim/ code, freedom ofmovementapersononparole canonly be Yet inaccordance withArticle357ofthecriminalprocedure Abbou wasonparole andtherefore couldnotcirculate freely. The policereportedly justifi ed thisdecisionbyarguingthatMr to Washington toparticipateinaconference onhumanrights. Hewasalsoprevented fromthe trialofajournalist. travelling 5 Salem wasarrested by thetraffi c police atahighwayexitwhileenroutefromBizerta to Tunis andwasheldfor more thananh 2008, lawyers Anouar KousriandSamirDilouwerevictims ofintimidationwhentheyreturnedto Tunisia afterhaving participate On 3 April 2008, KhémaïsChammari, formervicepresidentoftheFIDHwassubjectedtoharassmentfromcustoms agentsatthe Tun Forum démocratiquepourletravailetlaliberté ), respectively, fortakingpartinagathering Comité pourlerespectdeslibertés , CRLDHT)andmemberof 5 , backupontheirarrivalatTunisturned airport. mission wasundesirable” the Tunisian MinistryofInteriorinformedtheFIDHthat investigation missionon20April2008.However, on16April, des droits del’Homme,were planningtotravelTunis foran Michel Tubiana, HonoraryPresident oftheLiguefrançaise in Tunisia. President AminaBouayach,Vice oftheFIDH,and Tunisian authoritiesbarred theFIDHfrom carryingoutmissions On twoseparateoccasionswithinaperiodofsixmonths,the Refoulement ofHumanRightsInvestigationMissions foul languageinthepresence ofthejudge. broken. Hisdaughter, lawyerFadwaMaatar, wassubjectedto cantonal court,hewasviolentlyassaultedandhisglasseswere the AISPP, wasabouttodefendtheBizertagroup before the On 29August,whenlawyerAbdelwahabMaatar, amemberof two occasions,on19and24August2008. she wasassaulted.Sheprevented from leavingTunisia on treatment attheTunis Carthageairporton19August,where on torture inTunisia. SihemBensedrinereceived thesame etc.), includingsomerough copiesoftheCNLT documentary sixty digitaldocuments(DVDs,CD-ROM,musiccassettes, hardan external drive.Thepoliceoffi cersalsoconfi scatedabout the contentoftheirlaptopsandUSBkeyshadbeencopiedonto six hours,theywere authorisedtoleavethecustomsarea after sprains andseveralbruisesonherbody. Afterbeingdetainedfor police offi cers. Bensedrinesustaineddoublewristandelbow their laptops,theywere lockedintoanoffi ce andbeatenbythe they refused toauthorisetheagentsexaminecontentof documents were thoroughly searched andscrutinised.When return from astayinEurope. Theirluggage,booksandpersonal CNLT, were arrested atcustomstheportof Tunis upontheir newspaper, andMrsSihemBensedrine,spokespersonofthe On 3March 2008,MrOmarMestiri,editorinchiefoftheKalima life sentenceinprison. had visitedtheparents ofMrImedbenAmer, whoisservinga who alsohurledobscenitiesatthem.Thisoccurred afterthey the fl oor andbeatenbynumerous plainclothespoliceoffi cers, andthatitsrepresentatives wouldbe d inatourofEurope. On28July, Ali Ben our fornoapparentreason. is Carthageairport. On29June “the FIDH 55

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

Freedom of Association in Turkey

by Feray Salman

RECOMMENDATIONS

The Turkish government is urged to:

1. With regard to the political situation and the general framework of democracy and human rights: • Ensure that any legislation aiming at fi ghting terrorism respects human rights standards. Such legislation should not prescribe any restrictions on peaceful activities; • Remove Article 301 of the Turkish Penal Code as it still limits freedom of expression since “insulting” state institutions, such as the judiciary, the military and even individual offi cials, can still be penalised with prison terms of up to two years; • Eliminate all forms of discrimination based on, inter alia, gender, race, language, religion, political opinions, sexual orientation or membership in a national minority in all matters pertaining to the organisations of civil society; • Establish an effective and independent complaint mechanism based on UN Paris Principles in the context of the fi ght against discrimination.

2. With regard to the legislation and practice related to freedom of association: • Ensure that the existing laws with regard to respect of freedom of association are strictly applied; • Remove heavy penalties in the existing laws; • Put an end to harassment of all human rights defenders; • Allow the association Lambda Istanbul to pursue its activities; • Ensure, by way of an adequate consultation mechanism, the participation of associations in the decision-making process on policies of public interest.

Introduction

POLITICAL AND LEGAL FRAMEWORK AND party. The closure cases handled by the Constitution Court1 THE HUMAN RIGHTS SITUATION have also played a role in the continuation of political instability in Turkey.2 Following the general elections in July 2007, a new government The most important development related to freedom of was established by the Justice and Development Party (AKP), association in Turkey in 2008, however, was the investigation which won 44% of the votes. However, the AKP has not launched by a Public Prosecutor against Ergenekon, a group of been able to re-launch a reform process in this new period, retired Turkish soldiers and hardliner nationalists. The indictment despite having a majority of seats in the Turkish Grand National was presented to the court on 14 July 2008, after a 13-month- Assembly. long investigation, and included charges against 84 suspects. Political tensions have continued with the closure case brought An upcoming second indictment will include charges against against the Democratic Society Party (DTP) in November 2007 20 additional suspects detained in July 2008. Retired four- and with the indictment prepared by the Chief Prosecutor of star generals Hursit Tolon and Sener Eruygur (who chairs the the Court of Cassation against the ruling AKP in 2008. The Ataturkist Thought Association) are the alleged leaders of this Prosecutor claimed that the AKP had been a focal point for group, which the indictment identiﬁ es as an armed terrorist groups opposed to laicism and asked for the dissolution of the organisation according to the Turkish Anti-Terror Law. The

1 The Turkish Constitutional Court has closed 24 parties since it was established in 1963. 2 From the perspective of the European Court of Human Rights, a party should only face legal closure for advocating or engaging in violence. The current cases against the DTP and AKP have thus come under heavy criticism from European countries and do not help Turkey’s EU accession efforts.

57 Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRY REPORTS 58 in fact,unconstitutional. and theConstitutionalCourtagreed thattheamendmentwas, Republican PeopleParty(CHP) appealed againstthischange, the Turkish GrandNationalAssembly. However, theopposition lift theheadscarfbanonuniversitycampuses,waspassedby the righttoeducation.Theamendment,whichattempted constitutional amendmenttoparliament,whichwasrelated to all expectations,however, onlysubmittedone thegovernment which waspositivelyreceived bypublicopinion.Contraryto experts toprepare adraftfornewconstitution,aninitiative changing theTurkish Constitution.Itcommissionedagroup of initiatedadebateon September 2007,thegovernment Following theopeningofparliamentarysessionin Attempts toIntroduce aNewDemocraticConstitution Military Prosecutor. related toErgenekonallegedlyisalsounderinvestigationbythe military resolutely denieshavinganylinkstoErgenekon,adossier of associationsatthetimeinvestigation.Although retired high-rankingoffi cers) were eitherchairsormembers and asignifi cant numberofdefendants(andespecially within associationsestablishedundertheLawofAssociations, Some groups withinErgenekon apparently havealsobeenactive murders andbombingsthattookplaceaslong30yearsago. Interestingly, theindictmenthasputbackonpublicagenda will beginhearingthecaseinautumnof2008. The highercourthasallowedfortheindictmenttoproceed and 2008 toprovoke amilitaryoverthrow oftheAKPgovernment. attacks andassassinationsin also chargedwithplottingviolent 2002 and2004.Thegeneralis the gendarmerieforces between his termasthecommanderof coup attemptsduringandafter of plottingseveralfailedmilitary top. GeneralEruygurisaccused receive instructionsfrom the contact witheachotherand but thatthosecellshaveno personalities andassassins, membership thatincludesmedia say thatErgenekonhascellsthroughout thecountry, witha establish itselfasthedominantpowerinTurkey. Prosecutors of retired generals,withlinkstoactivetroops, andofaimingto The indictmentaccusesErgenekonofbeingunderthecontrol andothersuspects. journalists expanded toincludehard-line nationalists,secularpoliticians, members ofacriminalorganisation,buttheoperationquickly Police fi rst detainedagroup oflow-rankingveteransand full ofammunitionandfi rearms inIstanbul’s Umraniyedistrict. investigation beganlastyear, whenpolicediscovered ahouse military. bythe that associationsareundersurveillance prepared bytheTurkish ArmedForcesshows and SubgovernorsOffi of AssociationsestablishedunderGovernors ofInteriorthroughtheOffi by theMinistry Although aLawonAssociationsisapplied cs a “memorandum” a ces, three monthsof2008,and74 individualswere acquitted. judgments were handeddown inatotalof103casesthefi rst question addressed tothe Ministry ofJusticeinMarch 2008, 301 oftheTurkish PenalCode.According toaparliamentary was averypragmaticsolutiontotheproblem created by Article can stillbepenalisedwithprisontermsofuptotwoyears.This such asthejudiciary, themilitaryandevenindividualoffi cials, commentary thatisconsidered “insulting”tostateinstitutions, makes itmore diffi cult tolegallyprosecute offenders. However, this law, reduces themaximumpenaltyforviolations,and limits thescopeof“offences” thatcanbeprosecuted under the articlewaslimitingfreedom ofexpression. Theamendment to putanendcriticism,bothinsideandoutsideofTurkey, that amendedArticle301oftheTurkishThe government PenalCode Legal AmendmentsandDevelopments necessitated more timetoprepare. by claimingthatthecomplexityandextensivenature ofthecase able topostponeitsoffi cial defencehearingto16September defence toTurkey’s ConstitutionalCourton26June,butwas integrity ofitsterritoryandnation.”Thepartywastosubmit of 10out11votestocutinhalftheparty’s direct fi nancial of theparty, theConstitutionalCourtdecidedwithamajority President ofTurkey, AbdullahGül.Insteadofordering theclosure Zafer Üskül,thePrimeMinister, RecepTayyip Erdogan, andthe the ChairofParliamentaryCommissionHumanRights, ban from partypoliticsmore than70politicalfi gures, including the CourttocloseAKPfor“anti-secularactivities”and brought bytheChiefProsecutor oftheState,whohadasked On 30July2008,theConstitutionalCourtrejected alawsuit Party Closure Cases Associations are establishedthrough simpledeclaration,have Registration procedures have notchangedinthepastyear. ASSOCIATIONS FORMATION ANDDISSOLUTIONOF Part One ce of thestateandindivisible at damagingtheindependence as “acentre ofactivitiesaimed Party (PKK),aswellserving aiding theKurdistan Workers’ the partywaspromoting and The Prosecutor claimedthat Yalçınkaya toclosetheDTP. Prosecutor Abdurrahman lawsuit wasfi led byChief On 16November2007,a support from theTreasury.

Court ofFirstInstanceintheBeyoðlu districtofIstanbulruledin continued until29May2008.On2008,theThird Civil and conventions.” standards concrete eventscomplieswithnationalandinternational madefor should bedecidedbyajudgewhetheranyintervention shouldnecessarilybeallowedinoursociety.country Therefore,it to thenext,andonecannotarguethatwhatisacceptedin fromonecountry freedoms havetobelimited.Socialvaluesvary and children,particularlyprotectionoffreedomsothers, order, generalmoralunderstandings,protectionoffamilies in Turkey, nofreedomiswithoutlimits.Onthegroundsofpublic court saidthat: decided torepeal theProsecutor’s decision.Initsdecision, the Court ofFirstInstanceNo.5,whichacceptedtheappealand then tookthecasetoahighercourt,BeyogluSütlüce Rights andArticle33oftheConstitution.TheGovernor’s Offi ce citing Articles20and22oftheUniversalDeclarationHuman no grounds foropeningalegalcaseagainstLambdaIstanbul, Beyoglu DistrictProsecutor rejected thecomplaintandfound of theTurkish CivilCodeandArticle41oftheConstitution.The were “againstthelawandmorality”,inbreach ofArticle 56 and transsexual”inLambdaIstanbul’s nameandobjectives specifying thatthewords “lesbian,gay, bisexual,transvestite Offi ce. TheGovernor’s Offi ce hadsentalettertothe group, decision followingacomplaintbytheIstanbulGovernor’s The NGOLambdaIstanbulwasrecently closedbyacourt its activities. agreement ontheamendments,associationcansafelystart to thecourtfordissolutionofassociation.Ifthere is and theassociation,administrationhasrighttoapply a month.Ifthere isnoagreement betweentheadministration by theadministrationshouldbemadeassociationwithin goals andactivitiesoftheassociation).Amendmentsrequested Interior, Turkish PenalCode,andotherlegislationrelevant tothe issued bytheDepartmentofAssociationsMinistry compliance withTurkish legislation(AssociationsLaw, regulations 60 daysafterreceipt. Theadministrationexaminesthestatutes’ statutes forapproval andtheadministrationhastorespond within After notifi cation, associationshaveonemonthtosubmittheir before theirstatutesare approved bytherelevant administration. In practice,associationswillnotbegivenaregistration number committees. expected torecruit enoughnewmemberstoformtheobligatory This meansthat,withinasix-monthperiod,anassociationis members) withinsixmonthsafterthedateoftheirestablishment. of theboard andanauditingcommitteeformedbyatleastthree (consisting ofatleastfi ve principalandfi ve substitutemembers and havetoelectanewboard through thegeneralassembly Provincial AssociationsestablishedunderGovernor’s Offi ces), to obtainapproval oftheirstatusbytheadministration(Offi ce of Gender, Sexuality, andHumanRights inaChanging Turkey”. 3 Fordetailedinformation aboutsexualorientationandgender identityproblems, please seetheHumanRights Watch reportentit “Although fundamentalfreedomsareguaranteed Thecourtcasebeganon19July2007and ties totheTurkish ArmedForces. Theaction planalsoincluded associations andfoundationswith economicandmanagement education andfamilyissues,withpatrioticassociations, strengthening linkswithorganisations whoseworkfocuseson and supportingcertaincivilsocietyorganisations,at plan proposed inthememorandumalsoaimedatencouraging of nationalmedia,shouldfavourablybeinfl uenced. Theaction the Turkish ArmedForces intocivilsociety, andthemonitoring opinion regarding theTurkish ArmedForces, theintegrationof organisations. Themeasures listedsuggestedthatpublic planned countermeasures againsttheactivitiesofcivilsociety section ofthisconfi dential memorandumwasdevotedto authors, universitiesandhumanrightsorganisations.One and AssociationbasedinDiyarbakır),severalwell-known Social Researches Foundation), KA-MER(Women’s Foundation TUSIAD (BusinessmanAssociation),TESEV(Economicand the NationalEndowmentForDemocracy, theSoros Foundation, Organisations mentionedinthe73-pagememorandumincluded to obtainapproval totakecountermeasures inthiscontext.” by theUSAandEUinlinewiththeirownpurposes activities ofcivilsocietyorganisationswhichwere manipulated memorandum wasprepared toprovide informationabout purpose ofthememorandumwasexplainedasfollows:“This implement USandEUprojects aimedatdividingTurkey. The the memorandumwere accusedofreceiving foreign fundsto recorded. Individualsandcivilsocietyorganisationsincluded in several civilsocietyorganisationsinTurkey were detailedand the GeneralStaff in2006.Inthememorandum,activitiesof by theInformationSupportDepartmentofChiefOffi ce of A Turkish dailynewspaperpublishedamemorandumprepared are undersurveillancebythemilitary. prepared bytheTurkish ArmedForces showsthatassociations Offi andSubgovernors Governors ces, a“memorandum” Interior through theOffi ce ofAssociationsestablishedunder Although aLawonAssociationsisappliedbytheMinistryof LIFE OFASSOCIATIONS Part Two and ordered theclosure ofLambdaIstanbul. favour ofacomplaintbrought bytheIstanbulGovernor’s Offi ce, objectives were“againstthelawandmorality”. transsexual” inLambdaIstanbul’snameand words “lesbian,gay,bisexual,transvestiteand Istanbul Governor’sOf by acourtdecisionfollowingcomplaintthe The NGOLambdaIstanbulwasrecentlyclosed fi ce. Specifyingthatthe led “‘We NeedaLawfor Liberation’: 3

Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRY REPORTS Turkey Tunisia Palestinian Territories Syria Morocco Libya Lebanon Jordan Israel Egypt Algeria COUNTRY REPORTS 60 found thatthewarranthadbeen issuedunderArticle227ofthe the Centre.forLambda Istanbulsubsequently Theattorney but refused toanswerquestionsaboutwhytheywere raiding Department ofAssociations.The policepresented awarrant, Police. Theywere accompanied byanoffi cer from theCity identifi ed themselvesasmembersoftheFinancialandMoral clothing entered theLambdaIstanbulCulturalCentre and harassment. On7April2008,between12and15menincivilian and transgenderassociationshavebeenthemainvictimsof Prisoners Associations(representing mainlyKurdish prisoners) Association (alegallyestablishedleft-wingassociation), assaults byunknownattackers.TheBasicRightsandFreedoms have alsobeensubjectedtoraidsbysecurityforces and associations workinginthehumanrightsfi eld, associations In additiontothedirect harassmentexperiencedespeciallyby Harassment ofMembersAssociations is pending. without awrittenBoard Decision initsDecisionBook.Thecase against PrivatisationandtheDemocracyPlatforminMersin further accusedtheBranchofparticipatinginPlatform the goalsandactivitiesofillegalorganisations.Theindictment the righttofreedom ofexpression, astheyallegedlysupported some oftheassociation’s press statementswere notcovered by with theassociation’s goalsandactivities.Italsoclaimedthat Association were involvedinactivitieswhichdidnotcomply and membersoftheMersinBranchHumanRights Governor’s Offi ce. Theindictmentallegedthatboard members was brought bytheDeskofAssociationsMersin (IHD) on19July2007,witharequest forclosure. Thecomplaint against theMersinBranchofHumanRightsAssociation In addition,theMersinPublicProsecutor brought acourt case First InstancePenalCourtNo.3.Thecaseispending. Court underArticle301oftheTurkish PenalCodebytheAnkara Pamak andYusuf Tanrıverdi) havealsobeenreferred tothe 9 September2008.Speakersfrom theconference (Mehmet First InstanceCourtNo.26,where ahearingtookplaceon educational system,andthecourtcasecontinuesatAnkara 2007 complainedaboutsomeofthespeakers’criticism Offi cial Ideology.” TheDirectorate-General forFoundationsin December 2006whichwasentitled“EducationintheGripof were initiatedafteraconference organisedbyILKAV on3 Foundation (ILKAV) continuedinto2008.Legalproceedings The closure caseagainsttheScientifi c andCulturalResearches Interference inAssociations’Work associations are subjected. Ergenekon investigationreveal theindirect harassmenttowhich with somepositivemediaagents.Thismemorandumandthe Forces, andtoprovide informationanddevelopcooperation activities from affecting thegoalsofTurkey andtheTurkish Armed measures againstmediaagentstoprevent their“negative” displayed amuchmore positiveattitudetowards them. commentary onhumanrights NGOs’ activities,hasrecently newspaper), which,inthepast,had regularly publishednegative However, HurriyetDaily(ahigh-circulation broadsheet daily contrary tothepoliciesofarmedforces orthegovernment. media onlyspeakpositivelyofNGOsiftheiractivitiesare not BIANET andMediaKronikpublications).Mainstream (Internet human rightsNGOsinapositivelight.Thisincludesmainly It isworthnotingthatonlyafewmediaoutletsinTurkey portray they allege,wouldusethemagainstTurkey’s nationalinterests. to receive foreign fundsinorder topreempt rivalNGOswhich, In addition,NGOsaffi liated withnationalistmovementsattempt NGOs receiving fundsfrom abroad are underclosesurveillance. memorandum prepared bytheTurkish ArmedForces (seeabove), has beenrestricted. However, asindicatedintheconfi dential There isnoactualevidencethatNGOs’accesstoforeign funds on 8October2008. defendants incustodywere released. Anotherhearingwas held Anti-Terror Law. Duringthehearing on23June2008,allthe and 314/2oftheCriminalCodeArticles57/2 meeting, wasarrested andchargedunderArticles220/7,314/3 the press conference. EthemAçıkalın,whowaspresent atthe and ofgivingthismovementaforumforitspropaganda through was accusedofbeinglinkedtotheillegalorganisationDHKP-C never ruledthatHÖCwasinfactanillegalorganisation. members ofacriminalorganisation,althoughthejudiciaryhad of thosepresent were summonedtocourtonchargesofbeing Freedoms Front (HÖC)organisedapress conference, andsome it occurred onHumanRights Day. InAdana,theRightsand Human rightsactivistswere especiallysensitivetothiscaseas and aninvestigationintothecasehasbeenconductedinsecret. powerful accusationsthatthiswasinfactanarbitraryexecution, in araidonherhome10December2007.There havebeen (a presumed DHKP-Cmember),forexample,waskilledbypolice policies havebeensubjecttojudicialharassment.KevserMızrak statements whichcontainanyelementofcriticismexisting associations. Publicconferences, demonstrationsand Demonstrations andPeacefulMeetingsare usedagainst the Turkish PenalCode,Anti-Terror Lawandtheon Associations inTurkey are alsounderintensepressure, and material, asmandatedbylaw. invoices. Theauthoritiesdidnotmakealistoftheconfi scated members, itsregisters ofmoveableproperty, receipts, billsand seized records ofLambdaIstanbul’s offi cial decisions,alistofits from theMagistrates’CourtofBeyogluNo.2.Theoffi cers Beyoglu Prosecutor haddemandedandreceived thewarrant and alsoimposedapunitivefine uptothree thousanddays.”The punished withimprisonmentfrom twoyearsuptofouryears, acts asago-betweenorprovides aplaceforsuchpurposeis person tobecomeaprostitute, orfacilitatesprostitution, or Criminal Code,whereby “[a]nypersonwhoencouragesanother Freedom of Association in Europe

by Jeremy McBride

RECOMMENDATIONS

We call upon the European states to:

1. Time limits as a matter of law for decision-making on applications for registration or the grant of legal personality for associations should be no more than two or three weeks, with steps being taken to ensure their observance, namely the provision of additional staff and clear consequences for failure to meet them, whether a presumed refusal or positive decision;

2. Grounds for refusal of registration or the grant of legal personality for associations should be reformulated where they are insufﬁ ciently precise and they should be reviewed and modiﬁ ed to ensure their relevance and substantive compatibility with international standards

3. Decisions to prohibit associations, their activities and their funding - whether a national initiative or stemming from EU and UN measures - should be preceded by a fair hearing for those affected and be subject to continued judicial control over their operation;

4. State institutions should take effective action to prevent harassment of associations and their members and ensure that their powers are not exploited for this purpose.

Introduction

Apart from being generally assured in constitutions and Furthermore, 11 European states have accepted the unique instruments of a constitutional character1, freedom of association obligation at the international level which is to be found in the in Europe has the beneﬁ t of international and regional guarantees Council of Europe Convention on the Recognition of the Legal in the form of Article 22 of the International Covenant on Civil Personality of International Non-Governmental Organisations2 and Political Rights and Article 11 of the European Convention to grant the legal capacity to act to any association which has on Human Rights («the European Convention»). been established in another ratifying state. In addition, this freedom is speciﬁ cally assured for minorities in Articles 7 and 8 of the Framework Convention for the Protection In the light of these instruments and measures, it is not surprising of National Minorities and, within the European Union, it is also that the formation and participation in associations is generally guaranteed by Article 12 of the Charter of Fundamental Rights at a high level in European countries. Thus there are estimated of the European Union. to be more than 3 million associations within the 27 European

1 In the United Kingdom, e.g., the courts are required by the Human Rights Act 1998 to give effect to the provisions of the European Convention - including Article 11- in interpreting and applying the law. 2 CETS No 124 of 24 April 1986. The states accepting this Convention are: Austria, Belgium, Cyprus, the Former Yugoslav Republic of Macedonia, France, Greece, the Netherlands, Portugal, Slovenia, Switzerland and the United Kingdom.

61 EUROPE 62 rulings bythecitycourtandnationalcourt, see: done onthegroundofhisconstituting ‘danger tonationalsecurity’wasunfoundedonthebasisof evidenceprovidedtoth monitoring thecommitmentstheyhavemade,andensure standards setoutinit,takeaccountofthesestandards in in theirlegislation,policiesandpracticebytheminimum ofmemberstatesbeguided proposes thatthegovernments by voluntaryorganisations. 600,000 persons-2.2%ofthetotalworkforce -are employed many ofthesecountries;forinstance,intheUnitedKingdom, and supporters,theseassociationsare signifi cant employersin by associationsinvolvesvoluntaryinvolvementtheirmembers 11 10 9 8 7 6 5 4 3 organisations. of non-governmental Committee ofMinisterstomemberstatesonthelegalstatus by theCouncilofEurope in2007ofitsRecommendationthe protecting freedom ofassociationcamethrough theadoption The first enhancementtothebodyofstandards andmechanisms ENHANCED PROTECTION the national in challengingaspectsofthesemeasures incourtsatboth terror remain valid,there havebeensomenotablesuccesses impact onassociationsofactiontakenpursuanttothewar notedinthepreviousalthough concerns report aboutthe available forensuringthattheyare respected. Furthermore, have alsobeensomepotentiallyusefuladditionstothemeans the standards applicabletofreedom ofassociationandthere 2008, somesignifi cant enhancementshavebeenmadeto In theperiodunderreview, September 2007-September Union countriesalone homes and85%ofyouthclubs. associations manage40%ofhospitals,55%oldpeople’s to theprovision ofhealthandsocialcare. Thus,inGermany, associations inmanycountriesmakeamajorcontribution the cultural,sportingandsocialinterests oftheirmembers, fundamental freedoms of9December1998, General Assembly Resolution A/RES/53/144 legitimate objectives. the harassmenttowhichsomeare subjectedforpursuingtheir belong toassociations,theirdissolutionandprohibition, and theabilitytoformand enjoyment. Theseparticularlyconcern continue tobeanumberofproblems infullysecuringits and thehighlevelofactivitygeneratedbyitsexercise, there extensive arrangementsforprotecting freedom ofassociation Ibid For itsfi rst annualreport(OINGConf/Exp(2008)4), see: 2008. January CM/Rec(2007)14 of10October2007. Ibid See In Denmark, on19November, thehighcourtruledthat adminstrativedetentionofonethesuspectsplanninganattack United NationsDeclaration ontherightandresponsibilityofindividuals, groupsandorgansofsocietytopromote andprotect Adopted by the Committee of Ministers on 6 February 2008atthe1017th meetingoftheMinisters’Deputies. Adopted bytheCommitteeofMinisterson 6February , p682. , p586. Guidedelalibertéassociativedanslemonde: 183 législationsanalysées, ofMichelDoucin underthesupervision 6 andEuropean level.Nevertheless,despitethe 3 . Althoughmuchoftheactivityundertaken 4 Furthermore, apartfrom pursuing 5 7 ThisRecommendation http://www.domstol.dk/hojesteret/nyheder/pressemeddelelser/Pages/Tuneser-sagerne.aspx http://www.coe.int/T/E/NGO/Public/. prepare reports onproblems occurringinaparticularcountry. approach withregard toallEuropean countriesbutmayalso approaching itswork,theExpertCouncilpursuesathematic in them,whichaffect thestatusandoperationofNGOs.In countries, aswelltheadministrativeandjudicialpractices asked tomonitorthelegalandregulatory frameworkinEuropean and European goodpractice.TheExpertCouncilhasthusbeen and promoting itscompatibilitywithCouncilofEurope standards Europe byexaminingnationalNGOlawanditsimplementation, the creation ofanenablingenvironment forNGOsthroughout on NGOlaw. of theCouncilEurope hasestablishedanExpertCouncil Organisations Conference Non-Governmental ofInternational Following onfrom theadoptionofthisRecommendation, binding instrumentsacceptedthere andelsewhere. and asaguidetotheinterpretation andapplicationoflegally scrutiny ofactiontakeninrespect ofassociationswithinEurope in publicdecision-making-servesbothasastandard forpolitical and publicsupport,accountabilitythescopeforparticipation revocation oflegalpersonality, theirmanagement,fundraising associations, theirformationandmembership,thegrant covers inconsiderabledetailmatterssuchastheobjectivesof Although notformallybinding,theRecommendation-which institutions, andusedforthetrainingofoffi cials. parliamentarians, relevant publicauthoritiesandeducational as possibletoNGOsandthepublicingeneral,well Memorandum are translatedanddisseminatedaswidely that thisrecommendation andtheaccompanyingExplanatory of humanrightsdefendersandpromote theiractivities. Ministers onCouncilofEurope actiontoimprove theprotection association camein2008withDeclarationoftheCommittee A furtheradditiontotheefforts beingmadetoprotect freedom of creating anenvironment conducivetotheworkofhuman member statestotakeawiderangeofaction.Thisincluded: by stateagentsornon-stateactors,andspecifi cally calledon of Europe memberstatesorelsewhere, whethercarried out violations oftherightshumandefendersinCouncil Nations GeneralAssembly. Declaration buildsonanearlieroneadoptedbytheUnited 8 ThemandateoftheCouncilistocontribute ( La DocumentationFrançaise 11 Itcondemnedallattacksonand universally recognised humanrightsand e court. This rulingrunscountertothe on thecartoonist, Kurt Westergaard, , Paris, 2007), p576. 10 This 9 for urgentaction;andworkingincloseco-operationwithother may face,especiallyinserioussituationswhere there isaneed obligations, totheproblems whichhumanrightsdefenders assist theminlookingforsolutions,accordance withtheir deems appropriate, withthe competentauthorities,inorder to rights defenders;intervening,inthemannerCommissioner country visitsandtoreport publiclyonthesituationofhuman continuing tomeetwithabroad rangeofdefendersduringhis including ombudsmenornationalhumanrightsinstitutions; received from humanrightsdefendersandotherrelevant sources, human rightsdefendersby:continuingtoactuponinformation his Offi ce inorder toprovide strong andeffective protection for Human Rightswasinvitedtostrengthen therole andcapacityof Finally, andperhapsmostsignifi cantly, theCommissionerfor activities. participation ofhumanrightsdefendersinCouncilEurope activities withcivilsocietyorganisationsandtoencouragethe expected toencourageco-operationandawareness-raising rights defendersintheirrespective work.Inparticular, theyare human called upontopayspecialattentionissuesconcerning Furthermore, CouncilofEurope bodiesandinstitutions were feasible, theissuingofemergencyvisas. appropriate, attendanceatandobservationoftrials,and/or, if rights defendersindangerthird countries,suchas,where provide measures forswiftassistanceandprotection tohuman situation ofhumanrightsdefenderswhensorequested, andto responses andenteringintodialoguewithhim/heraboutthe Human Rights,byfacilitatinghis/hervisits,providing adequate European Convention,aswellwiththeCommissionerfor the European CourtofHumanRightsinaccordance with the of Europe humanrightsmechanismsandinparticularwith In addition,itcalleduponstatestoco-operatewiththeCouncil and/or criminalproceedings. those responsible accountablethrough administrativemeasures independent andeffective investigationofsuchacts,andtohold attacks onorharassmentofhumanrightsdefenders,ensure freedoms are violated;andtakingeffective measures toprevent the existenceofeffective remedies forthosewhoserightsand their activities;strengthening theirjudicialsystemsandensure and respect humanrightsdefendersandensure respect for Convention; takingeffective measures toprotect, promote any restrictions otherthanthoseauthorisedbytheEuropean protection ofhumanrightsandfundamentalfreedoms, without standards,with international topromote andstriveforthe to freely carryoutactivities,onalegalbasisandconsistent rights defenders,enablingindividuals,groups andassociations 12 Op. cit. , n5. pressures wasevidentinsomecases.Furthermore, itfound the grantoflegalpersonality, foundthatthescopeforimproper not beanessentialqualityforthebodydecidingonregistration or The ExpertCouncil,whilerecognising thatindependencemight reasoned. of legalpersonalityand/ordonotrequire suchadecision tobe did notspecifyanygrounds forrefusing registration orthegrant the promotion ofcivilsociety. Italsofoundthatsomecountries a mannerconsistentwiththerighttofreedom ofassociationor seemed tobedrawnwithsuffi cient precision ortobeappliedin the basisforrefusing registration orthegrantoflegalpersonality Moreover, itconsidered thatnotallthegrounds recognised as have appropriate safeguards againstprevarication andabuse. on registration orthegrantoflegalpersonalitydidnotalways In addition,itfoundthatthetime-frameforreaching decisions Convention. to freedom ofassociationunder Article11oftheEuropean in somecasesdidnotseemtobeconsistentwiththeright persons andnon-nationals)from beingeligibletoformNGOs disqualifi cation ofsomepersons(notablychildren, convicted the burden thereby imposed.Furthermore, itfoundthatthe advantages thatmightprovide anappropriate justifi cation for or desired -didnotseemtocorrespond toanysignifi cant fi scal registration orlegalpersonality-where thisiseitherrequired information neededinsomeinstancesorder tosecure informal groupings waseffectively inhibitedandthatthe detailed Thus itfoundthatthere were countrieswhere theoperationof always straightforward asamatteroflawandpractice. Expert CouncilonNGOLawfoundthatthepositionwasnot is handledexpeditiously. However, thefi rst annualreport ofthe and inyetothersthere isaformalregistration procedure that public authoritytobenotifi ed oftheassociation’s formation, the acquisitionoflegalpersonalitymerely requires therelevant association -insomenoformalprocedure isrequired, inothers In mostEuropean countries,itisrelatively easytoestablishan FORMATION ANDMEMBERSHIP high profi le manner. acting ashumanrightsdefendersare resisted inacogentand has thepotentialtoensure thatthreats tothemanyassociations mechanisms. ThisauthorisationforactionbytheCommissioner Representative onHumanRightsDefendersandotherexisting European Union,theUnitedNationsSecretary General’s Special the OSCE/ODHIRfocalpointforhumanrightsdefenders, organisationsandinstitutions,inparticular intergovernmental 12 63

EUROPE EUROPE 64 14 13 the countriesconcerned. obstacles totheformationandmembershipofassociationsin the positionofindividualassociations,thesecasesreflect general establishing associations.Moreover, with althoughconcerned that canbeencountered in someEuropean countriesin European CourtofHumanRights haveconfi rmed thediffi culties Unfortunately, intheperiodunderreview, therulingsof Nations HumanRightsCommittee. law oftheEuropean CourtofHumanRightsandtheUnited instruments,particularlyaselaboratedinthecase international These recommendations developtherequirements of registration orthegrantoflegalpersonality. and beingconfi dent torely ontheminscrutinisingrefusals of standardslawyers beingtrainedintherelevant international grant oflegalpersonalityshouldbeassured, withjudgesand registrationjudicial control andthe overdecisions concerning for thetask.Finally, itrecommended thateffective andtimely that thosechargedwiththisrole shouldbeappropriately trained personality shouldbeimmunisedfrom politicalinfl uence, and respect totheregistration ofNGOsorgrantingthem legal standards. Italsorecommended thatdecision-making with their relevance andsubstantivecompatibilitywithinternational precise, andthattheyshouldbereviewed andmodified toensure for refusal shouldbereformulated where theyare insuffi ciently Furthermore, theExpertCouncilrecommended thatgrounds a presumed refusal orpositivedecision. staff andclearconsequencesforfailure tomeetthem,whether to ensure theirobservance,namelytheprovision ofadditional be nomore thantwoorthree weeks,withstepsbeingtaken standards andthatformaltimelimitsfordecision-makingshould should bebrought intolinewiththerequirements ofinternational persons andnon-nationalsfrom beingfoundersofNGOs It alsorecommended thatrestrictions onchildren, convicted facilitate theadministrativetaskofdeterminingapplications. simplifi ed bothtolightentheburden onthoseapplyingandto for securingregistration oracquiringlegalpersonalityshouldbe matter oflaw. Inaddition,itrecommended thattherequirements be repealed andtheirlegitimacyshouldbeclearlyrecognised asa legislative restrictions ontheestablishmentofinformalgroupings The report oftheExpertCouncilthusrecommended that the exercise ofjudicialcontrol. giving effect tothelatterdidnotseembecorrected through rather thanthetermsofapplicablelaw, shortcomingsin that, whilemanyoftheproblems notedarose from practice Nos. 34144/05and26698/05, 27 March 2008. No. 57045/00, 21June2007. and Othersv. Greece members”) wasalsofoundtobeinviolationofArticle11 exaltation andestablishbondsofsisterhoodbetweenits county ofRodopi”andtoworkfor“social,moralspiritual to itsstatute,wascreate a “meetingplaceforwomenofthe Turkish Women oftheRegionRodopi”(whoseaim,according The refusal tograntregistration tothe“CulturalAssociation of as relevant orsuffi cient. by theauthoritiesforrefusing registration couldnotberegarded quite vagueunderBulgarianlaw. Asaresult, thereasons given in viewofthefactthatexactmeaningtermappeared pursue “political”goalstoregister asapoliticalparty, especially “pressing socialneed”torequire everyassociationdeemedto participate innational,localorEuropean elections,there wasno Moreover, itobservedthat,asassociationswere notallowedto would useviolentorundemocraticmeanstoachieveitsaims. regard thatithadnotbeensuggestedeithertheassociation country’s integrityornationalsecurity. Itemphasisedinthis democracy, and“opening”aborder couldnotjeopardise a were notinthemselvesincompatiblewiththeprinciplesof campaigning forchangetolegalandconstitutionalstructures the Constitution.InCourt’s view, restoring themonarchy or on theground thatitsaimswere politicalandincompatiblewith Republic ofMacedoniaandBulgaria)wasrefused registration monarchy and“opening”theborder betweentheformerYugoslav repealing theBulgarianConstitutionof1991,restoring the Integration -forBulgaria”(whosearticlesinclude,inparticular, “Civil SocietyforBulgarianInterests, NationalDignity, Unionand Bulgaria must alwaysberelevant andsuffi cient. Thus,in review, ithasalsore-emphasised thatthereasons forrefusal procedural devicestodenyregistration intheperiodunder Although theCourthasprimarilyhadtoaddress theuseof membership ofanassociationare acceptablecanbeseeninthe An importantrulingontheextenttowhichsanctionsfor its statute,orifitoperatedinamannercontrarytothelaw. practice itpursuedaimsthatwere different from thosestatedin courts wouldhavehadthepowertodissolveassociationifin or unconstitutionalmeans,anditnotedfurtherthattheGreek its membersadvocatedtheuseofviolenceorundemocratic society. TheCourtsawnothinginthestatutetoindicatethat this couldnotbesaidtoconstituteathreat todemocratic in Greece astherespondenthadsuggested, government had beentopromote theidea thatthere wasanethnicminority basis that,evensupposingthatthereal aimoftheassociation 13 , itfoundaviolationofArticle11,where theassociation 14 . TheCourtreached itsjudgmentonthe Zhechev v. Emin had beenadvancedbyItaly. secret andMasonicassociationsnon-secret associations reasonable justifi cation forthedifference intreatment between Convention arose intheinstantcasebecausenoobjectiveand of “European publicorder”. However, theviolationof to therulesofdemocracy, whichwasafundamentalelement between theirmembersorpursuedanideologythatrancounter that establishedarigidandincompressible bondofsolidarity structure, orthose or associationswithamilitary-typeinternal or groups advocatingracistorxenophobicideas,forsects offi ce. Initsview, thismightbethecaseforpoliticalparties disorder where membersofthoseassociationsheldpublic create aproblem fornationalsecurityandtheprevention of that membershipofmanyothernon-secret associationsmight national securityandpreventing disorder, theCourtconsidered life ofthecountry, couldpursuethelegitimateaimsofprotecting when there hadbeencontroversy surrounding theirrole inthe had beenintroduced inorder to“reassure” thepublicatatime prohibition onnominatingFreemasons topublicoffi ce, which membership ofanyotherassociations.Whileacceptingthata to membershipofsecret andMasonicassociationsbutnotto with Article11,becausethelegislativerequirement applied only was foundtobeaviolationofArticle14takeninconjunction when seekingnominationforpublicoffi ce. Thisrequirement an obligationtodeclare one’s membershipofaMasoniclodge so doing,theCourtreferred totheradicalnature ofthemeasure DÌtalia diPalazzoGiustinianiv. Italy ruling bytheEuropean CourtofHumanRightsin Xanthis andOthersv. Greece held bytheEuropean Court ofHumanRightsin the ground thatitsstatute ran countertopublicpolicy, was creating bondsoffriendship andsolidaritybetweenthem),on promoting theculture ofthe«Turks ofWestern Thrace»and the Turkish Youth ofXanthi»withthepurposepreserving and (which hadbeenfoundedin1927underthename«Houseof Thus thedissolutionof«Turkish AssociationofXanthi» for thisbeingtaken. resurgence ofamore scepticalviewofthesupposednecessity such drasticactionandpointingtothebeginningofawelcome them, underliningthevalueofeffective judicialcontrol over the enforced dissolutionofassociationsorattemptstoprohibit There havebeenimportantcourtrulingsinconnectionwith DISSOLUTION ANDPROHIBITION 18 17 16 15 [2006]ECRII4665. 3 April 2008. 3 April Nos. 34144/05 and26698/05, 27March2008. No. 26740/02, 31May2007. 16 tobeinviolationofArticle11.In (No.2), 15 which concerned whichconcerned Grande Oriente Tourkiki Enosi in CommonPosition2001/931,andunderit,withverylimited had beenadoptedinorder to implementthemeasures set out and entitieswithaviewtocombatingterrorism. Thisregulation specifi c restrictive measures directed againstcertainpersons implementing Article2(3)ofRegulation(EC)No2580/2001on annulment ofCouncilDecision2002/460/EC17June2002, Kurdistan Workers’ Party Firstly, inCaseT-229/02, war onterror. validity ofrestrictions imposedonassociationspursuanttothe There withthe havealsobeenseveralmeasures concerned threat topublicpolicyortheterritorialintegrityofacountry. their disseminationshouldnotautomaticallyberegarded asa certain viewsorwords usedmightappeartotheauthorities, about theirethnicidentity. Howevershockingandunacceptable right ofeveryonetoexpress, inalawfulcontext,theirbeliefs The Courtconsidered thatfreedom ofassociationinvolved the uprising oranyotherformofrejection ofdemocraticprinciples. of theassociationhadevercalledforuseviolence,an Moreover, there wasnoevidencethatthepresident ormembers engaged inactivitiescontrarytoitsproclaimed objectives. “Turks ofWesternThrace”-thattheapplicantassociationhad and thepublicationofaletterinTurkish dailyreferring tothe participation inconferences organisedbytheTurkish authorities “strongly oppressed minority”,thepresident oftheassociation’s of thememberspresented theMuslimminorityofThraceasa the factorsrelied onbyadomesticcourt-namely, thatsome The Courtalsoconsidered thatitcouldnotbeinferred from law.international and evenprotect andsupportaccording totheprinciplesof was ahistoricalfactthatdemocraticsocietyhadtotolerate that theexistenceofminoritiesanddifferent cultures inacountry constitute athreat todemocraticsociety. TheCourtreiterated there wasanethnicminorityinGreece, thiscouldnotbesaidto the applicantassociationhadbeentopromote theideathat public policy. Initsview, evensupposingthatthereal aimof the titleorstatuteofassociationthatmightbecontraryto found thattheGreek courtshadnotidentifi ed anyelementin activities unhindered fornearlyhalfacentury. Furthermore, it dissolving theassociationandnotedthatithadpursuedits v Council(‘OMPI’), T 228/02,OrganisationdesModjahedinesdupeupled’Iran followed therulingofEuropean CourtofJusticeinCase the CourtofFirstInstanceEuropean Communities 18 whenitgrantedanapplicationforthe (PKK) Osman Ocalan,onbehalfofthe v CounciloftheEuropeanUnion 17 ,

EUROPE EUROPE 66 view tocombatingterrorism. measures directed againstcertainpersonsandentitieswitha (EC) 2580/2001of27December2001onspecifi c restrictive PMOI’s nameinthelistAnnextoCouncilRegulation 21 20 19 of Iranv. CounciloftheEuropeanUnion Instance heldinCaseT256/07, Thirdly, followingonfrom therulinginEngland,CourtofFirst 2008. secretary toliftthebanonPMOIwitheffect from 24June this rulingtheBritishParliamentapproved anorder bythehome it mightdecidetorevert toterrorism inthefuture». Following interrorism’,to be‘concerned evenifthepossibilityexiststhat aims byotherthanviolentmeans...Thelattercannotbesaid with anorganisationthathasdecidedtoattemptachieveits from terrorist activitiesfortacticalreasons istobecontrasted Appeal statedthat«Anorganisationhastemporarilyceased not attemptedtore-arm. Inupholdingthisruling,theCourtof no militarystructure, andthatitdisarmedin2003had security targetshadendedin2001,thattheorganisation concluded thatactionbythePMOIagainstIranianmilitaryand or theMeK-was«fl awed» and«perverse». ThePOAChad and knownintheUnitedStatesasMujahedeen-e-Khalq, member ofthecoalitionNationalCouncilResistanceIran on thePeople’s MojahedinOrganizationofIran(«thePMOI»)-a («the POAC»)thatthegovernment’s decisiontomaintaintheban a rulingbytheProscribed OrganisationsAppealCommission Secondly, on7May2008,theEnglishCourtofAppealupheld object ofthechallengeincase. maintained inthesubsequentupdatingDecisionthatwas CFSP anditsconsequentDecision2002/334/EC,itwas 2002/340/CFSP, updatingCommonPosition2001/931/ on 2May2002,whentheCounciladoptedCommonPosition did notappearintheoriginallist,itsnamehadbeenaddedtoit available tothosepersons,groups orentities.AlthoughthePKK be frozen. Itisalsoprohibited tomakefundsorfi nancial services group, orentityincludedinthelistreferred toinArticle2(3)must exceptions, allfundsbelongingtoanaturalorlegalperson, was notobserved procedure duringwhichtheapplicant’s righttoafairhearing of reasons andthatithad been adoptedinthecourseofa on theground thatitdidnot containasuffi cient statement PMOI, annulled aprevious decision,insofarasitconcerned this decision-thesecondtakenfollowingrulingthathad PMOI,namely,insofar asitconcerned thefreezing offunds.By certain personsandentitieswithaviewtocombatingterrorism No 2580/2001onspecifi c restrictive measures directed against December 2007,implementingArticle2(3)ofRegulation(EC) for theannulmentofCouncilDecision2007/868/EC20 Seepara32. United NationsSecurity CouncilandEuropeanUnionblacklists 23 October2008. 20 -theCouncilhadcontinuedtoinclude People’s MojahedinOrganization 19 , grantedanapplication , Resolution1597(2008). arbitrary. Europe asaviolationoffundamental rightsandcompletely condemned bytheParliamentaryAssemblyofCouncil associations thatwasthesubjectofthesethree caseswas The veryuseofthetechniqueblacklistingindividualsand reasonable chanceofprospering before theCourtofAppeal. the argumentsputforward bytheHomeSecretary stooda of thatrefusal, namelythat,according tothePOAC,noneof Secretary leavetointroduce suchanappealandofthegrounds had beeninformedofthePOAC’s refusal togranttheHome and, ontheother, whenthedecisionwasadopted,Council the applicant’s proscription as ‘unreasonable’ and‘perverse’ of actstheHomeSecretary, haddescribedtherefusal tolift POAC, thejudicialauthoritycompetenttoreview thelawfulness That wasallthemore thecase because,ontheonehand, lies andthelegalconclusionswhichitdrew from thosefi ndings. fi ndings offactmade bythePOACagainstwhichnoappeal be relieved oftheneedtotakeintospecifi c considerationthe the HomeSecretary hadsoughttolodgeanappealinorder to it wasnot,inthisinstance,suffi cient fortheCounciltostatethat decision andtotheHomeSecretary’s actualrecourse tothem, have hadregard totheexistenceofappealsagainstPOAC’s Court considered that,whileitwastruethattheCouncilcould involved interrorism sincethatperiod.Inthethird place,the a terrorist organisationorthat,inotherwords, ithadnot been the criterianecessaryformaintenanceofitsproscription as as from September2006,wasthatPMOInolongermetanyof a reasonable decision-makercouldhavehonestlyentertained, was theconclusionreached bythePOACthatonlybelief the POAChadtorule.Particularlysignifi cant inthisregard in thelightofsamebodyfactsandcircumstances onwhich continued inclusionofPMOIinthelistatissueremained justifi ed Secretary, whichhadbeendrawnfrom thosefi ndings, thatthe lay, andthelegalconclusions,particularlysevere fortheHome the fi ndings offactmadebythePOAC,againstwhichnoappeal actual specifi c reasons whytheCounciltookview, inspiteof do. Furthermore, itfoundthatthestatementdidnotexplain PMOIintheUnitedKingdom,asitwasrequiredconcerning to far theCouncilactuallytookintoaccountPOAC’s decision that statementofreasons didnotmakeitpossibletograsphow continuing tofreeze PMOI’s funds.Itfoundthat,inthefi rstplace, reasons wasobviouslyinsufficient toprovide legaljustification for information atthedatewhenitwasadopted-thisstatementof the Courtconsidered that-havingregard toalltherelevant to submitobservationsontheproposal toincludeitinthelist, by astatementofreasons andbeenpreceded byanopportunity Although CouncilDecision2007/868/EChadbeensupported independent review ofsuch decisions. any hearingbefore blacklisting decisionsare takenand of any 21 Itwasparticularlycriticaloftheabsenceboth racial insults»,althoughanappealispending convicted for«incitationtoracialviolenceandhatred andfor criminal actionsagainstGreece’s neo-Nazis,oneofwhomwas Greek HelsinkiMonitor(«GHM»)andactivistswhohavefi led has beenunderlinedbyactionthattakenagainst Declaration oftheCouncilEurope’s CommitteeofMinisters rights defenders,whichwasrecognised inthealready mention associations thatare performingtheimportantrole ofhuman The needforprotection againstharassmentforthose DEFENDERS HARASSMENT OFHUMANRIGHTS his stand,wasacquitted. a hot-dogvendorwhohungposteradvertisingtheT-shirts on the company’s websiteonhisserver, buttheseventhdefendant, six monthsinprison.Asixthdefendantgot60daysforhosting of theT-shirt companywere sentencedtobetween60daysand by theEuropean UnionandtheUnitedStates.Fiveemployees (PFLP). BothFARC andPFLPare listedasterrorist organisations printing shopforthePopularFront fortheLiberationofPalestine Revolutionary ArmedForces ofColombia(FARC) andaposter for sellingT-shirts inorder tohelpfundaradiostationforthe an earlieracquittal,sixpersonswere convictedinDenmark measures takenpursuanttothewaronterror. Thus,overturning However, notallcourtrulingshaveconstrainedtheeffect of 24 23 22 complaints were notcompletely unfoundedandlaunched Misdemeanors CourtofAthens)decidedthatthesecriminal of Athens(andinonecasetheChiefProsecutor oftheAppeals comments, buttheChiefProsecutor oftheFirstInstanceCourt agents. Thiscomplaintalsoincludedracistanddefamatory is redundant andillegal, implyingitsmembersare foreign In addition,acomplainthasbeenfi led againstGHMclaimingit by thetaxauthorities. a demandbytwoparliamentariansforaninvestigationofGHM audit «intheframeworkofinvestigationGHM»following calling ofaGHMmemberbythecompetenttaxoffi ce foran threats againstindividualsthathavenotbeeninvestigated,the containing racist,anti-Semiticandhomophobicstatements investigation, whichwasregistered bythecourtsdespite defamation againstthosewhohadtestifi ed inthepreliminary station andfi le acomplaint),thefi ling ofacriminalcomplaintfor by thecourt(whichsuggestedthatvictimgotopolice assaults duringthetrialinrespect ofwhichnoactionwastaken The harassmentofGHMhasincludedverbalattacksand

See See para9. The CopenhagenPost Greek HelsinkiMonitor , 19September 2008. pressrelease, 17 August 2008and 22 24 . World Organisation against TortureOrganisation World 23 ,

challenges tothemaswell-founded. extent, bythereadiness ofEuropean courtstouphold some restrictions inindividualcaseshasbeenmatched,toacertain However, thevoicingofscepticismastoneedfor dissolution ofassociationsortheprohibition oftheiractivities. threats topublicsecurityandterritorialintegrityjustifythe of associationsandthere isstillundueacceptanceofalleged exist insomecountriesregarding formationandmembership no room forcomplacency, assomesignifi cant diffi culties do protection beingextendedtothisfreedom. However, there is positive. Furthermore, some improvements canbeseeninthe The generalpositionregarding freedom ofassociationismainly Conclusion that thisisnotfullyunderstoodinGreece. allowed tobeemployedinanabusivemanner. Itwouldappear should ensure thatcriminalandregulatory processes are not proper appreciation ofthelegitimacyhumanrightsdefenders role. Althoughthecriminallawmustbeimpartiallyenforced, a other humanrightsdefendersinGreece from playingtheir vital sustained byoffi cial institutionscoulddiscourageGHMand association toprotect humanrights,andthefactthatitisbeing All thisactionseekstounderminegenuinebyan completely unfounded. Court ofAthenshasdecidedthatthecriminalcomplaintwasnot punished bydeath”.TheChiefProsecutor oftheFirstInstance to includeterritoryoftheGreek Stateinanotherstateshallbe force todetachfrom theGreek Stateterritorybelongingtoitor Code, whichstates:“onewhoattemptsbyforce orbythreat of matter), heviolatedArticle138paragraph1oftheCriminal Nations Treaty andrecommendations onthe Bodiesconcerns Commission againstRacismandIntoleranceUnited minority inGreece (whichincludereferences totheEuropean claiming that,withtextsthathewrote ontheMacedonian Finally, acomplainthasbeenfi led againstaGHMemployee than fourmonths. investigation, which,according tothelaw, shouldnotlastmore months later, thecomplaintisstillinphaseofpreliminary preliminary criminalinvestigations.However, more thannine (OMCT) pressrelease, 3September 2008. 67

EUROPE

The Impact of Counter-Terrorism Policy on Freedom of Association in the Euro-Mediterranean Region

by Susie Alegre

Introduction

Although terrorism is not a new phenomenon in the Euromed region, the events of 11 September 2001 served to unite the “international community”1 in a common cause against terrorism. This has meant that there has been a shift of focus in the international community from a policy of promoting the development of democracy and respect for human rights in their own right, to a policy driven by the notion of security. This shift of focus has been harnessed by many States as a justifi cation for increasing security measures and for suppressing legitimate opposition or groups that may create political diffi culties for the State. In the face of this worrying development, however, States are increasingly reticent about criticising the counter-terrorism efforts of others for fear that they themselves will be criticised, either for being too soft on terrorism or for an excessively draconian response. In addition, the international community has singled out the non-profi t sector2 as a possible conduit for terrorist fi nancing, which has put increased pressure on an already vulnerable civil society across the Euromed region and had a signifi cant impact on freedom of association.3

The threat of terrorism is real across the Euromed region, although the sources may differ. In both cases, however, there is a danger of confusing the violence of terrorism with the elements of the ideology behind it. There is an additional problem of associating those who defend the human rights of those suspected of or convicted of terrorism with the crime itself. This has an enormous impact on the ability of human rights defenders to continue their work and affects freedom of association more broadly.

Although terrorism and counter-terrorism activities impact on many human rights in a wide variety of ways, this chapter outlines the speciﬁ c ways in which freedom of association has been affected by counter-terrorism policy and practice across the Euromed region. The examples given are selected to illustrate the problems posed by counter-terrorism policy and practice across the region, but are not exhaustive. It is important to note that the impact of counter-terrorism on freedom of association and related rights is as notable in the North of the region as it is in the South and East, although the scale of violations may differ.

STATES OF EMERGENCY

The pretext of combating terrorism or the rise of violent extremism is often used as a justiﬁ cation for imposing a state of emergency or for derogating from international human rights obligations. The effective suspension of the rule of law in order to combat terrorism has a very severe impact on the enjoyment of human rights and may well result in creating conditions that are conducive to recruitment for terrorism.4

States of emergency have been in force without interruption in Syria since 1963, in Egypt since 1981 and in Algeria since 19925 in reaction to the threat of political violence.6 These states of emergency allow States to resort to extreme measures in the name of security and continue despite the apparent improvement in the security situation in some states.7

1 Groups of states working together through formal or informal international, regional and sub-regional groupings and organisations - e.g. UN, EU, OSCE, CoE, OIC, SCO, G8, G6, etc. 2 Commission Communication, ‘The Prevention of and Fight against Terrorist Financing through enhanced national level coordination and greater transparency of the non-proﬁ t sector’ COM (2005) 620 3 See The EU’s External Cooperation in Criminal Justice and Counter-terrorism: An Assessment of the Human Rights Implications with a particular focus on Cooperation with Canada - CEPS Special Paper, Susie Alegre, September 2008 section 2.3 - www.ceps.eu 4 See UN Global Counter-Terrorism Strategy - http://www.un.org/terrorism/strategy-counter-terrorism.shtml 5 UN Committee Against Torture, CAT/C/DZA/CO/3, 15 May 2008 6 See Eminent Jurists Panel Press Release, Cairo 7 June 2007 - http://ejp.icj.org/IMG/EJP-PREgypt_2-2.pdf 7 See para 4 UN CAT report on Algeria supra, and HRW press release supra.

69 THE IMPACT OF COUNTER-TERRORISM POLICY ON FREEDOM OF ASSOCIATION 70 in caseswheretheyhavecommittedacts legallydesignatedascrimes: community byfacilitatingoverlappingand intertwiningjurisdictionbetweenthevariousagencies. Article 16ofthis Act protec Decree No./109/August17, 1968, andtheStateSecurityDepartment 15,Act issuedby LegislativeDecreeNo.14/January 1969, whi during theimplementationofspecifi c tasksassignedtothem, outtheirduty, orin the courseofcarrying exceptbyanorderi exceptional powersonthegrounds ofnationalsecurity. Ithasformedthebasisofmanyotherlaws The SyrianStateofEmergencyandMartialLaw, introduced in1963,endowedthesecurity and administrativeapparatuswith 16 15 14 13 12 11 10 9 8 human rightsgroups. On 26May2008,Egyptextendedthestateofemergencybytwoyearsinfacevociferous objectionsfrom theopposition and emergency lawtore-arrestthem, according tonewsreports. many onlineactivistswhohadpromotedthestrike. When Egypt’s prosecutor-general orderedthereleaseof20detaineesaweek textile workersfromstrikingintheNiledeltacityofMahalla, violentlydispersedprotestsagainstrisingcostsoffoodand Khairat alShatir, deputysupremeguideoftheMuslimBrotherhoodand24othercivilianstoprisonterms ofupto10years. expressed support Rapporteur onthepromotion andprotection ofhumanrightsandfundamentalfreedoms whilecounteringterrorism has,however, instrumentsreferAlthough manyinternational toterrorism, thererecognised is,asyet,nointernationally defi nition. TheUN DEFINITION OFTERRORISMANDCRIMINALPROSECUTIONS and Counter-Terrorism, Fact Sheet No32, 2008, pp26-27 allow apersontoadapttheirconductinaccordance withthelaw. Theexceptionalconsequencesthatstemfrom thecategorisatio counterterrorism legislation,includingpledgesmadepriortoitsbeingelectedtheUNHumanRightsCouncilinMay2007, • • • Actscommitted,includingagainstcivilians,withtheintenttocausedeathorseriousbodilyinjury, ortakingofhostages; that terrorism hasthefollowingthree characteristicsirrespective ofitsmotivations: in Article9oftheICCPR, drafting, whichleavesthemopentoabuse.Thiskindoflegislationisinviolationthenon-derogable principleoflegality National andregional defi nitions ofterrorism across theEuromed region havebeenseverely criticisedfortheirexcessivelybr national liberationandself-determination. foundered mainlyduetodifferences ofopinionbetweenvariousmembersabouttheuseviolenceincontextconfl icts ov an acceptedcomprehensive defi nition of terrorism. Duringthe1970sand1980s,UnitedNationsattemptstodefi ne theterm The word «terrorism»community hasneversucceededindeveloping ispoliticallyandemotionallycharged andtheinternational the lawhasbeenrenewed twicesincethelastelectiondespiterelative stabilityinEgypt. senior membersoftheMuslimBrotherhood inEgyptwhencriminalchargeshadbeendismissedagainstthemciviliancourts. the righttofreedom ofassociationandfreedom ofassembly. Duringthelastyearthislawhasbeenusedtoprosecute andconv courts except on procedural issues in violation of international humanrightsstandardscourts exceptonprocedural issuesinviolationofinternational fairtrial. composition ofsuchcourtsisdeterminedbythePresident ofEgyptandtheaccusedhasnorighttoappealrulingsthese Egyptian EmergencyLawNo.162permitstheexecutivetorefer civilianstomilitaryorexceptionalstatesecuritycourts.The correspondence. has alsobeenusedtoprohibit strikes,demonstrationsandpublicmeetings,tocensororclosedownmediaoutletsmonito rights obligations. the ruleoflawandcreated impunityforcriminalacts,potentiallyincludingactsoftorture, contrarytoSyria’s internationa powers ofthenationalintelligencecommunityandprovided immunityfrom prosecution ofsecuritypersonnel.Ithasthusunderm emergency, allthemore soasEgyptisexperiencingaperiodofstability.’ HumanRights Watch ibid. HumanRights Watch, Egypt: ExtendingStateofEmergency Violates Rights, PressRelease28/5/2008- Includingthe Act ofResistingtheGoalsRevolution, 7, issuedbyLegislativeDecreeNo./6/January 1965, theLawCreati SeeHumanRights Watch PressRelease April 112008http://hrw.org/english/docs/2008/04/11/egypt18517.htm ‘On April 6and7200 HumanRights Watch PressRelease April 162008- Suchas Article 14ICCPR HumanRights Watch Ibid-StatementofEgypt’s NationalCouncilf Foranalysisoftheprinciple oflegalityandthedefi nition ofterrorism seeOffi ce oftheUnitedNationsHighCommissioner f SeeE/CN.4/2006/98, para42 Constituting offences withthescopeofandasdefi conventionsandprotocolsned intheinternational relating toterrorism. organizationtodoorabstainfrom oraninternational doinganyact;and intimidate apopulation,orcompelGovernment Committed withthepurposetoprovoke astateofterror inthegeneralpublicoragroup ofpersonsorparticularpersons, 13

15 fortheapproach totheconceptofterrorism setdowninSecurityCouncilResolution1566(2004),whichstates 8 The government hadmaderepeated promises Thegovernment thatthestateofemergencylawwouldbereplaced bynew 16 whichrequires thatacriminaloffence mustbesetdowninlawwithsufﬁ cient clarityandaccessibilityto http://hrw.org/english/docs/2008/04/16/egypt18564.htm «AnyemployeeoftheStateSecurityDepartment maynotbe or HumanRights, 20thMay2008 ‘Nothing anylongerjustiﬁ es http://hrw.org/english/docs/2008/05/28/egypt18951.htm -On April 15, 2008, tribunalsentenced themilitary 10

basic goods, anddetainedscores, including ts securitypersonnelfromprosecutioneven ssued bytheDirectorate.” ng Military FieldCourtsissued byLegislative ng Military or HumanRights, HumanRights, Terrorism 11 Ithasalsohadanimpacton later, invokedthe theInteriorMinistry ch bolsteredthenationalintelligence 14 prosecutedforcrimescommitted whichhavebolstered the the extensionofstate 8, securityforcesprevented enshrined and l human Special

9 ined but oad 12 ict er n It r

and Punishment(UNCAT). under ittotreatment whichwouldbeincontraventionoftheUNConventionagainstTorture, InhumanandDegradingTreatment being overlybroad andpossiblyextendingtoactionswhichare notnecessarilyofaterrorist nature, andforexposing thosear The UNCommitteeAgainstTorture hascriticisedthedefi nition ofterrorism containedinarticle87bisoftheAlgerianPenalC or privateproperty. the generallyacceptedconceptofterrorism, includingamongstitsaimsimperillingpeople’s honouroroccupyingseizingpub national legislation.TheCouncilofEurope ConventiononthePrevention ofTerrorism 2005doesnotdefi ne terrorism specifi cally toimplementit,thedefi nition isabasicminimumandEUMemberStatesmayapplymuchbroader defi nitions inthei Amnesty International hascriticisedJordan’sAmnesty International Anti-Terrorism Law2006 depend onthenationalimplementationofsuchoffences. contains adefi nition ofoffences amountingto“provocation toterrorism”. Thehumanrightscompatibilityofsuchcriminalisati may damageproperty duringaninitiallypeacefuldemonstrationtherefore disproportionately impactingontherighttoprotest. defi nition hasbeenthesubjectofcriticismsfrom humanrightsgroups, asitisfeared thatitcouldbeusedtotargetprotest The Tunisian defi nition ofterrorism This defi nition issobroad astocriminalisemere opinion withouttheneedforviolence. element ofseriousviolence.Italsocoversthevaguenotion“incitementto...fanaticismregardless ofthemeansemployed. In relation toMENAStates,thedefi nition containedinArticle1ofthe1999OrganisationIslamicConference the breadth oftheamendment. On aregional level,theEUhasagreed adefi nition ofterrorism initsCouncilFrameworkDecisiononcombatingterrorism. question ofhowterrorism isdefi ned is,therefore, ofenormousimportanceforhumanrightsgroups. all ofwhichhavesevere detrimentaleffects ontheenjoymentofanumberhumanrightsincludingfreedom ofassociation.The incommunicado detention,freezing ofassets,proscription, deportationandlimitationsonfreedom ofmovement,amongstothers, of apersonorgroup levelcanincludetheuseof“special tribunals”andmilitar as“terrorist” onanationalorinternational 23 22 21 20 19 18 17 for terrorism punishablebehaviour, alsowhencommittedthrough theInternet. The EUCouncilrecently agreed anamendmentmakingpublicprovocation tocommitaterrorist offence, recruitment andtraining Borders- Counter-terrorism andcriminallawinthe EU, May2005- Borders- 31 30 of themeansemployed.” is tocauseharmpersonsorproperty, byintimidation orterror. Are treatedinthesamewayactsofincitementtoracia offence. The punishmentcannotbereduced to lessthanthehalf. Isqualifi edasterroristanyinfraction inrelationtoanind 29 28 27 26 25 24 Convention onthePreventionof Terrorism 2001: (22January HL26/HC247) Combating International TerrorismCombating International hasalsobeencriticisedasbeingoverlybroad acts, allofwhichmaybebroadly interpreted andopentoabuse. “disrupt publicorder” or“endangerpublicsafety”“affect withinthedefi thepolicyofcountryorgovernment”, nition o may result indamagetoproperty, however minor. foractivitiessuchasholding publicmeetingsw permitting criminalisationofpeacefulcriticsandopponentsthegovernment March 2007, p. 12 prison sentences. of thebannedoppositionparty neither committednorincitedactsofviolenceandhashadanimpactonfreedom ofassociationthrough itsuseagainstmembers 18 April 2008http://europa.eu/rapid/pressReleasesAction.do?reference=MEMO/08/255 Although astatementwasattachedtotheFDclarifyingposition, thishasnolegalvalue-see Amnesty InternationalRepor CouncilFrameworkDecision2002/475/JHAoncombatingterrorism Ibid p. 12 Anti-terrorism lawNo55of2006, Article 2. Amnesty InternationalPublicStatement, ‘Jordan’s anti-terrorismlawopensdoortonewhumanrightsviolations,’ 7November200 Anti-terrorism lawNo55of2006 UN CAT supra, para4. GeneraloftheOIC,See HRWlettertotheSecretary 11 An Organisationcomprising56MemberStatesincludingmanyfromtheMENAregion: rather itlinksbacktotheuniversalconventionsonterrorism- http://www.euractiv.com/en/justice/eu-headway-anti-terror-law/article-175643 Conseil NationalpourlesLibertesen Tunisie, ‘Preventive JusticeandPoliticalInstrumentalisation: Trials underthe Anti-Ter The UK Parliamentary JointCommittee onhumanrightshascriticisedUKimplementationasnotbeingcompliantsee:The UKParliamentary Article 52bisoftheCriminalCodeintroduced in1993: “The perpetratorofanoffencequalifi ed asterroristoffenceincursthe www.cnltunisie.org 31

20 Ennahdha Whilethisdeﬁ nition willbebindingonEUMemberStatesandsomehaveintroduced legislation 29 isverywidelydrawn.Itincludesactsagainstpersonsorproperty butdoesnotrequire an whowere convictedof“supportaterrorist organisation” andcondemnedtoheavy th March 2008 27 http://conventions.coe.int/Treaty/en/Treaties/Html/196.htm#ANX TheAnti-Terrorism Lawincludes“damagetoinfrastructure”, withtheintentionto http://www.amnesty.org/en/library/asset/IOR61/013/2005/en/dom-IOR610132005en.html 22 28

http://www.oic-oci.org/oicnew/member_states.asp 26 asnotbeingsufﬁ ciently tightlydraftedandpotentially 19 TheEuropean Parliament,however, hascriticised 24 anddraftedinvaguetermswhichgofarbeyond 30 Ithasbeenusedtoprosecute peoplewho ividual oracollectiveenterprisewhosepurpose l orreligioushatredfanaticismregardless

rorism Lawin Tunisia’, Tunis June2005- punishmentstipulatedforthesame t -HumanRightsDissolvingatthe 6, AI IndexMDE 16/012/2006 JCHR, The Council ofEurope 23 Conventionon 21 assuch,but . f terrorist y courts, ors who ode for 17 rested on will This hich lic 18 ” r

THE IMPACT OF COUNTER-TERRORISM POLICY ON FREEDOM OF ASSOCIATION THE IMPACT OF COUNTER-TERRORISM POLICY ON FREEDOM OF ASSOCIATION 72 matters’, December2005: HL75/HC 561, para13 Liberty andJustice, JointCommitteeonHumanRights, October2007aswelltheParliamentary ‘Counter-terrorism policyandh the righttofreedom ofexpression. any stepstowards engaginginterrorist violence,effectively criminalisingunpalatableviewsanddisproportionately interferin UK hasbeenthesubjectofheavycriticismfrom humanrightsgroups, abuse ofsuchbroad powersanditspotentialimpactontheactivitiesofcampaigningorganisations bothwithinandoutsidethe violence usedagainstciviliansandtheuseofbynon-stateactorstoremove anon-democraticregime. Thepotentialf violence againstpersonsandthatwhichdamagesproperty ordisruptsanelectronic system.Noristhere adistinctionbetween andtoactionswhichoccurbothinsideoutsidetheUK.There isnodistinctionbetween oranyothergovernment, government This defi nitionprovides thebasisforextensivestopandsearch powersundertheTerrorism Act2000. defi nition ofterrorism. new law, criminalcode”andintroduces consistingof103articleshasbeencharacterisedasan“alternative evenmore elasti Legislation. show “reasonable grounds forsuspicion”thattheperson stoppedmaybeinvolvedinunlawfulconduct.Thesestopandsearch offered tosuspectsandadoptstheprincipleofpreventive justice. anonymity), authorisestheattachmentofproperties undermere suspicion,restricts the numberofappeals,trimsguarantees offences (art.61))andpunishingtherefusal toactasawitness.Italsoremoves anypossibilitytoobjectthejudges(prot sentences stipulatedbytheCodeofCriminalProcedure (from 10yearsto20forcrimesandfrom three yearsto10f 45 44 43 42 41 40 39 38 37 36 35 34 33 32 police offi cer toauthoriseaparticulararea for thepurposesofadvancingapolitical,religious orideologicalcause.” [of action]designedtoinfl ortointimidatethepublicasectionofpublic,andusethreat uence thegovernment articles.” a viewtothepreparation, markedbyoneormore materialactions,ofanytheactsterrorism provided forundertheprevi The French criminalcodedefi nes efforts tocombatterrorismIn 2003,afurther“Lawinsupportofinternational andfi ght money-laundering” map anetworkofcontacts. neighbours, membersofthesamemosque,co-workers,orthosewhofrequent aparticularrestaurant” basedoninvestigations that activity linkedtoETA whichisaclearlystructured organisation)hasledtothearrest andindictmentof“familymembers,fri Watch haspointedoutthattheuseofthisoffence inrelation toallegedIslamistterrorist activity(asopposedtoBasquesep arbitrary interferences withtherightsoffreedom ofassociation,expression, religious freedom andpersonallife. thatthere isnotsuffito concerns cient legalprecision toallowapersonregulate his/herconduct accordingly, whichmayl The Tunisian lawsnotonlyapplywithinthecountry, butare appliedtoTunisians livingabroad aswell.Manyhavebeenconvic subject ofheateddebate In theUnitedKingdom,defi nition ofterrorism andrelated offences whichhasevolvedoverthepasteightyearsbeenth association andexpression beyondtheborders ofTunisia. to haveamountedacriminaloffence inthecountrywhere theactionstookplace.Thisspreads theselaws’impactonfreedom absentia”

No 2003-75of10December2003 See forexamplesubmissionstotheHuman RightsCouncilontheUniversalPeriodicReviewofUnitedKingdomfromHuman Right See e.g. Ibid. See HRWreportsupranote20p. 22 See HRWreportsupranote20andFIDHreport: ‘France: justice’no271-2, pavingthewayforarbitrary March1999. French CriminalCodeart. 421-2-1(translation fromHRWreport: PreemptingJustice: CounterterrorismLawsand ProceduresinFra Ibid p. 13 Ibid p. 14 CNLT reportsupranote22atp. 13, Articles 4and6ofthelaw. Including currentlythe wholeofGreaterLondon. Terrorism Act 2000, section 44 Lord CarlileofBerriewQC, Deﬁ nition of Terrorism (March 2007), para60 Terrorism Act 2000, Section1 36 forterrorism offences committedoutsideTunisia andthere isnorequirement forthefactsonwhichaprosecution isbased http://www.liberty-human-rights.org.uk/issues/2-terrorism/index.shtml Thisdeﬁ nition isundulybroad, andlackoflegalcertaintyinthelawhasbeenexacerbatedbyjurisprudence,givingrise 43

33 Thisnewlawestablishesanemergencyjusticesystem,allowingtrials 40 duetoitspotentialforabuse.TheUKdeﬁ nition ofterrorism intheTerrorism Act2000is“theuseorthreat 38 Itcanalsobeusedtotakeactionagainstpeoplewhomayhaveextremist viewsbuthavenot taken association demalfaiteurs 39

45 withinwhichpolicemaystopandsearch apersonorvehiclewithnorequirement to as“theparticipationinanygroup formedorassociationestablishedwith 35

42 aswellfrom theUKIndependent ReviewerofTerrorism 41 Thisappliestoactionsdesigned“inﬂ uence” the UK in camera 44 uman rights: Terrorism Billandrelated Thisprovision allowsasenior , extendingtheprescribed nce, 2ndJuly2008p. 19) s Watch, 7th April 2008andfrom 32 wasintroduced. This 37 HumanRights ected by is made ead to g with ted aratist ends, ous “in or or of e c

acts whichdiscredit orhumiliatethevictimsofterrorism. with free speech.” current formwillhaveaninhibitingeffect onlegitimatefreedom ofexpression andwilltherefore leadtodisproportionate int Joint CommitteeonHumanRightscommentedthat“[i]tislikelythecreation oftheoffence ofencouragementterrorism i The UKTerrorism Act2006hasbeenheavilycriticisedforitsbroad defi nition of“encouragementterrorism” open toabuse. has beenatrend inEurope towards criminalisationofvagueoffences suchas“glorifi cation” or“justifi cation” ofterrorism wh levels of sentences and the rules governing theservingofsentences. levels ofsentencesandtherulesgoverning incommunicado detention,thejurisdictionof terrorism andcounter-terrorism forfearofprosecution. of terrorism canhaveanevenmore severe impactonfreedom ofexpression, stifl ing thepossibilityofdebatearound theissue has recently beencriticisedbytheUNHumanRightsCommittee. “directly orindirectly encouragedorotherwiseinducedbythestatementtocommit,prepare orinstigatesuchactsoffences” statements where thepersonmakingstatementeitherintendsor“isreckless” tothepossibilityofmemberspublicbe powers havebeenusedcontroversially inrelation toprotesters outsideanarmsfair 59 58 57 56 55 54 53 52 51 50 49 48 47 46 general population.” terrorism toactsthatdonotamountto,andhavesuffi cient connectionto,actsofseriousviolenceagainstmembers criminal code,highlightingthefactthatthey“carryriskofa‘slipperyslope’,i.e.gradualbroadening ofthenotion The UNSpecialRapporteuronhumanrightsandcounter-terrorism, MartinSchienin,hascriticisedtheseprovisions oftheSpanis acts oroffences”. Giventhealready broad defi nition ofterrorist offences intheTerrorism Act2000thisisofgraveconcern. Such statementsincludeanywhich“glorifythecommissionorpreparation (whetherinthepast,future orgenerally)ofs Susie Alegre, March2008 Offi ce andotherinternationalorganisations inGeneva, 28November2005. Commissioner ofPolicefortheMetropolisand Anor, [2006] UKHL12. found thatthestopandsearchpowerswereaproportionateinterferencewithhuman rightsinresponsetotheterroristthreat- a ban. national liberationmovement,asthecontentofbookdidnotposesuchadangertopublicsafetyandorder astomer violation oftherighttofreedom ofexpression inFrancerelation tothebanonabookcontainingpoliticalarticlebyth Court ofHumanRightshasstressed therequirement forproportionality inanyinterference withfreedom ofexpression. Itfound not becategorisedas“terrorist” iftheydonotsupporttheuseofviolencetothatend.InanumberjudgmentsEuropean Those whoshare thedesire forindependencewithanationalistterrorist group orthedesire toestablishanIslamiccaliphate expansion. with therighttofreedom ofexpression andthat,therefore, onthefactsofthatcaseaccusedhadbeenproperly acquitted. a songwhichhighlightedtheGuardia CivilasETA targets,foundthattheseprovisions require anarrow reading inorder tocom Terrorism theacquittalofagroup ofmusicianswhohadbeenaccusedanoffence seekingtooverturn undertheseprovisions f The Spanishpenalcodecriminalises statements were madeinthecontextofadiscussionwhere otherviewpointswere putforward. concepts, wasalsoaviolationoffreedom ofexpression, asitwasnot“necessary”,particularlyinthelightoffactthat he denouncedthepoliticalsystemofTurkey asaimingtodestroy Islamandstatedthatreligion anddemocracywere contradictor

UN SpecialRapporteur onHumanRightsandCounter-Terrorism concludes visittoSpain, PressRelease 14May2008. Judgment of17July 2007, Number656/2007 Ibid. Article 578PenalCodeintroducedbythe LeyOrganica7/2000of22ndDecember2000 Article 577PenalCode JCHR, The CouncilofEuropeConventiononthePrevention of Terrorism 2001: (22January HL26/HC247, para47. CCPR/C/GBR/CO/6 atpara26 Terrorism Act 2006, section1 Muslum Gunduzv Turkey (No1), ECHR Application number35071/97;Judgment04/12/2003 Ekin Association vFrance, ECHR Application number39288/98;Judgment17/07/2001 August 2007. SeeHRWsubmissionsuprafn20 This issuewasraisedtotheUKgovernment bytheUNHighCommissionerforHumanRights, Louise Arbour -LettertotheUK’s Per See pendingcasebeforetheECHR-GillanandQuintonvUK, Application No4158/05whereapplicantsareseekingtooverturnaH See EuropeanParliamentBriefi ng PE393.283, ‘Human Rights ConcernsRelevanttoLegislatingonProvocationorIncitement Ter 49 TheconvictionofaleaderanIslamistsectforstatementsmadeduringthecoursetelevisiondiscussion,inwhich 47 Theextensionofthenotionterrorism tocriminalisevaguenotionssuchas“glorifi cation” ofterrorism or“justifi cation” 54

59 He was particularly concerned aboutthis“slipperyslope”astheclassiﬁ Hewasparticularlyconcerned cation ofcrimesas“terrorist” triggers “apologia” 55 (justiﬁ cation) ofterrorism and Audiencia Nacional 48 57

TheSupreme Court,inacasebrought of bytheAssociation ofVictims 52

insteadoftheterritorialcriminalcourt,anddifferences in the “enaltecimiento” 46 andtoprotests againstHeathrow airport 56 (gloriﬁ cation) ofterrorism, aswell 50 Despitethisjurisprudence,there R(ontheapplicationofGillanand Anor v manent RepresentativetotheUN ouse ofLordsjudgmentwhich rorism andRelatedOffences’, 51 whichcriminalises erferences e Basque should ich are 53 . This The n its uch the the ing of ply or a of 58 h it y

THE IMPACT OF COUNTER-TERRORISM POLICY ON FREEDOM OF ASSOCIATION THE IMPACT OF COUNTER-TERRORISM POLICY ON FREEDOM OF ASSOCIATION 74 armed militantafterhehaddied, in ahallwhere aphotoofAbdullahOcalan(theleaderthePKK)wasdisplayed, in Turkey. 73 72 71 70 69 68 67 66 65 64 63 62 61 60 of theeditorsandboard membersoftheBasquelanguagenewspaper, particular, casesrelating Thepros tothemediaandcivilsocietyorganisationsworkinginBasquecountryare ofconcern. newspaper editorsandmembersofcivilsocietyorganisationshavebeenprosecuted foroffences related toterrorism. chilling effect oncivilsocietyandtheprotection andpromotion ofhumanrights.Inanumbercountriesacross theregion, Prosecutions forterrorism-related offences which impactonfreedom ofassociationandfreedom ofexpression canhaveasevere terrorism, CouncilCommonPosition2001/931/CFSPontheapplicationofspecifi c measurestocombatterrorism. Decision 2001/927/ECestablishingthelist providedforin Article 2(3)ofCouncil Regulation(EC)No2580/2001, Council Common Elci, Fahrettin Akcan and Abdulbaki Tasci. Hanim Adiguzel, Eyyuphan Aksu, ResitBatur, Esref Tekin, Suleyman Yilmaz, Abdullah Gurgen, SukruOguz, EmineOguz, Adil Ceyhan, Organica 4/1988andLey13/2003. See alsoSpain, Fifthperiodicreport, CCPR/C/ESP/5, 2008, 5February paras92-94 responsible foraseriesofarsonattacks. The practiceofproscribing basisthrough organisations deemedtobe“terrorist” theUNsanctionssy occursonaninternational PROSCRIPTION ANDLISTINGMECHANISMS in accordancewiththe presentguidelines. (seealsoOsmanvUK, (28October 1998)[GrandChamber](2000)29EHRR 245) withintheirjurisdictionagainst terroristacts,fundamental rightsofeveryone especially therighttolife. This positiveob the fi ght againstterrorism2002-I. againstterrorism -Statesareundertheobligation States’obligationtoprotecteveryone Temel, Sabahattin Aslan check currentstatus level,therean international hasbeencriticismoftheopacitylistingmechanismsanddiffi culty fororganisationsorp be carriedoutbyanindependentjudicialbodycapableofdecidingwhetherornottheorganisationisinbreach ofexistinglaw “propaganda foraterrorist organisation”. In Turkey, anumberofpoliticiansandhumanrightsactivistshavebeenprosecuted underanti-terrorism legislationwhichcrimi which give rise to concerns overthedisproportionate interferencewhich giverisetoconcerns withfreedom ofassociationandfreedom ofexpression. In Spain,there havebeenanumberofprosecutions before the purposes anditsconformitywiththelawmayonlybereviewed onceacomplainthasbeenlodged againstit. The SpecialRepresentative oftheSecretary-General onhuman rightsdefendershasmadeitclearthatthelegalityofanorganis levelaswellatthenationallevel. at theinternational forward anorganisationforinclusiononalistmaygounchallenged.Thishasdisproportionate impactonfreedom ofassociati listscreatesinternational ariskthatnon-terrorist organisationsmaybeadverselyaffected andthatpurely politicalmotives in violentactivities,particularlythoseaffecting civilians,thelackofclearprocedures tochallengetheinclusionoforgan the European CourtofHumanRightsforthefailure toinvestigatetheallegationsoftorture. of evidence. forward asaprivateprosecution, iscontinuingdespitearecommendation from theprosecutor thatitshouldbedropped duetol organisation andcollaborationwithanarmedgroup, isaparticularlyworryingexample.Theprosecution, whichisbeingtaken association inTurkey. tortured duringincommunicadodetention,whichispermittedunderSpanishterrorist legislation. there isclearlyajustifi cation andindeedanobligationunderhumanrightslaw on aregional basisthrough theEUlistingmechanism, http://www.diariovasco.com/20080915/politica/otamendi-denuncia-estado-europa-20080915.html

Case ofOsmanKeser(MayorKakapinarMunicipality), FadileBayram(FormerprovincialadministratoroftheDemocraticSociety E.g. UN1267committee- Case ofOsmanBaydemir, fi le nuber2007/ Anti-Terror law7/2 Statement oftheprosecutor, Miguel Angel Carballo-Cuevo, 4December2006, CourtRecordNo21/05-seeICJSubmissionsupra. Case 44/04-checkcurrentstatusofcase See ICJSubmissiononlistofissuestotheHumanRightsCommitteeConsideration5thPeriodicReportSpain. -e.g. ca See reports of the Special Representative of the Secretary-General onhumanrightsdefenders,See reportsoftheSpecial RepresentativeoftheSecretary-General Hina Jilani(A/59/401andE/CN.4/ E.g. CouncilRegulation(EC)No2580/2001onspecifi c restrictivemeasuresdirectedagainstcertainpersonsandentities witha Case against21peopleincludingtheChairandboardmembersofHumanRights Association (IHD)of Vetha Aydin, HasanCeyhan Human rightslawimposesapositiveobligation onstatestoprotectlife, aswelltorefrain fromtakinglife. SeeCouncil o Code ofCriminalProcedure(CCP) Article 520bis inconjunctionwith Article 55(2). Also LeydeEnjuiciamientoCriminal(LEC) See HRW World Report2008onGermany, p. 388wheretwoacademicswerearrestedforbeingintellectualsupportersofamilitant 69 Theriskofprosecution forterrorist offences inthesecircumstances hasaseverely restrictive effect onfreedom of 63 The circumstances around thiscaseare exacerbatedbythefactthatanumberofaccusedallegetheywere http://www.un.org/sc/committees/1267/index.shtml 68 andattendingajointpress conference withNGOsandpoliticalpartiesonilltreatment inprisons 66 Thefactsonwhichtheseprosecutions havebeenbasedincludedgivingaspeech 71 andonanationallevelinmanycountriestheEuromed region. While Audiencia Nacional Egunkaria 72 forprohibiting orcontrolling organisationsinvolved , 62 whoare chargedwithmembershipofanillegal forcrimesofassociationwithterrorist groups, 67 visitingthefamilyofapersonwhowasan 65 ligation fullyjustifi es States’fi ght againstterrorism

totakethemeasuresneededprotect 64 f EuropeGuidelinesonhumanrightsand Acomplainthasbeenmadeto Position2001/930/CFSPoncombating viewtocombatingterrorism, Council se 18/98;case33/01;44/04 ADnan Aslanci, IsmailEkinci, Fehmi Party), MehmentBayram, Abdullah Ley53/1978asamendedby 2006/95) , PakizerUksul, Saniye Turhan, 73 left-wing factionallegedly Suchareview must 60

isations on forputting ecution stem, nalises ation’s eople . On 61 ack In on 70

rights, includingtherighttofreedom ofassociation. rule ontheirinclusionthelist,recognising thatthiseffectively excludedthemfrom aneffective remedy tointerferences fi nancing ofterrorism andothercriminal abuse”. The European Commission produced aCommunicationin2005addressing the“vulnerabilities ofthenon-profi t sectortothe NGOs operatingintheregion. nature ofthethreatterrorism posedbyinternational could haveaparticularlydetrimentaleffect onfundingforlegitimateIs links NGOstoterrorist fi nancing and/ormoneylaunderingcanhaveadramaticeffect onfundingforNGOs.Inaddition,theIsl Rights. inadequate accesstojusticeinchallenginginclusiononEUlistsandonecaseisnowpendingbefore theEuropean CourtofHuma with Canada-CEPS Special Paper, Susie Alegre, September 2008section2.3- Proscribed OrganisationsAppealsCommissiontoremove thePMOIfrom thenationallistofproscribed organisations. freezing oftheirassets.Followingonfrom thatjudgment,theCourtofAppealinUnitedKingdomupheldarulingfrom the listing mechanism,whichhadresulted intheorganisationbeingincludedonEUlistofterrorist organisations,resulting i to havetheirnamesremoved from thelists. 83 82 81 80 79 78 77 76 75 74 fundingstreams forNGOsintheregion.Africa toasecuritypriorityhashadanadverseimpactoninternational community from thepromotionThe shiftoffocustheinternational ofhumanrightsanddemocracyintheMiddleEastNorth FUNDING of Iran(PMOI), work, whichisaveryseriousconsequenceforthosewhoare incorrectly listed.InthecaseofPeople’s MojahedinOrganisa Non-EU organisationsandindividualsare targetedthrough freezing ofassetswhichaffects fundingstreams andtheabilitytoc long periodsoftime. the impactonhumanrightsofalistingdecisionmaybesevere, leavingapersoneffectively destitutewithnoaccessto funds are notstrictlycriminalinnature andtherefore are lackinginthesafeguards thatwouldstemfrom criminalproceedings, alth according towhetherornotanorganisationindividualisEUbasednational.Theprocess andconsequencesoflisti the reputation ofanorganisationanditsabilitytocontinueworkisclear. Howeverthelegaleffect ofinclusiononthel In theEuropean Union,listsofterrorist organisationsandindividualsare publishedintheOffi Theeffect cial journal. ofli lists undertheumbrella oftheterrorist organisation not derivefrom Communitycompetences.TheBasqueorganisations to anycourtchallengetheirinclusiononthelists,asEuropean CourtofJusticehaslimitedjurisdictionovermatters EU organisationslistedontheterrorist listsare notsubjecttoassetfreezing and therefore are effectively deprivedofa arbitrary impactontherighttofreedom ofassociationintheEU. to non-profi t organisations asavehicleforterrorist fi nancing isofconcern. combat criminalabuse.Whiletheaimtoreduce criminalabuseofnon-profi t organisations isclearlylaudable,theimportanceg and soughttoestablishacodeofconductthatwouldimprove transparency andaccountabilityofnon-profi t organisationsto illegal organisationinFrance. list, theFrench courtsrefused thereturn onthegrounds thatpartoftheactivitieshadoccurred inFranceandthatSegiwas relation toaFrench nationalaccusedofmembership Segi, anorganisationclassifi ed ascriminalinSpainandincludedth aEuropeanorganisation willbeproscribed arrest inallEUMemberStates.Inacaseconcerning warrantfrom SpaintoFrancei While inclusionontheEUlistrequires unanimityfrom allMemberStates,theconsequenceofinclusiononlistisnotthat the decisiontoincludethemonlist.

E.g. KadivCounciloftheEuropeanUnion, Judgmentof3September2008andCaseC-355/04PSegivCounciltheEuropeanUni See The EU’s External CooperationinCriminalJusticeand Counter-terrorism: An Assessment of theHumanRightsImplicationswit COM (2005)620 conductedin Interviews Amman, August 2008. See Amnesty InternationalReportsuprafn15 Segi supra ofStatefor HomeDepartment,Alton andothersvSecretary Times LawReports, 13May2008 Case T-228/02, OrganisationdesModjahedines dupeupled’iranvCounciloftheEuropeanUnion, JudgmentoftheCourtFirstI Segi andGalarragav27EUMemberStates Application number3750/08 See OSCE Workshop onHumanRightsandInternationalCooperationinCounter-Terrorism Report- 76

77 theCourtofFirstInstancecondemnedabsenceprocedural safeguards andhumanrightsguaranteesinthe 80 Suchdiscrepancies callintoquestionthelegitimacyofEUlistingmechanismanditspotentially 74 RecentcasesintheEuropean CourtofJustice 82 Itidentifi ed non-profi t organisationsasoneoftheconduits forterrorist fi nancing ETA 79 Theyare nowreturningtotheEuropean CourtofHuman Rightstochallenge , buttheEuropean CourtofJusticefoundthatitdidnothavejurisdictionto www.ceps.eu Segi

83 and

http://www.osce.org/documents/odihr/2007/02/23424_en.pdf Gestoras soughttochallengetheirinclusiononthe 75 haveconﬁ rmed theproblem of h aparticularfocuson Cooperation nstance, 12December2006 on, 2007 Judgmentof27February 81 Discoursewhich 78

ists varies with their sting on ontinue that do not an ccess amist lamic n the ough e EU iven

tion UK for ng an n n

THE IMPACT OF COUNTER-TERRORISM POLICY ON FREEDOM OF ASSOCIATION THE IMPACT OF COUNTER-TERRORISM POLICY ON FREEDOM OF ASSOCIATION 76 87). Where fundsare frozen inerror there isnorightofcompensationforaffected organisations. institution whichprovides organisation informationaboutasuspicioustransfertofreeze fundswithoutinformingtheconcerned of anykindorforeign fi nancing. The“CommitteeofFinancialAnalysis”,supervisedbytheCentralBankTunisia, canauthori from receiving anamountofsubsidieshigherthanthatlimitedbytheadministration.NGOsare forbiddenfrom receiving donatio In Tunisia, thelawonterrorist fi nancing noted thatitseverely restricts theuseofforeign fundingforNGOs. aboutthisnewlawanditsimpactonfreedom ofassociation.Inparticular,organisations havevoicedseriousconcerns itshou funding streams underthegeneraljustifi cation ofsecurityandtheneedfortransparency. humanrig Nationalandinternational The Jordanian LawonNGOsisanexampleofthetypenationallegislationwhichcanbeusedtorestrict NGOsandtheir the justifi fication oftheinternational ght againstterrorist fi nancing. legislation inparticularcanbeabusedtorestrict funding,particularlyforeign fundingtohumanrightsandotherorganisatio of countries inNorthAfricaandtheMiddleEast,where there isariskoftorture orilltreatment Inthelight ontheirreturn. on freedom ofassociation. associations” (namelythosegroups deemedtobeasecurityriskorconstituteterrorist organisation)haveanadverseimpa Ordinance -1948,andtheDefense(Emergency)Regulations1945whichaimtoprevent theestablishmentoractivityof“illegal 92 91 90 89 88 87 86 85 84 suspected terrorists orpeoplewhohavebeenconvicted Over thepastfewyears,anumberofEUcountries,includingDenmark, community.other statesintheinternational led toasituationwhere aclaim ofnationalsecurityorthethreat ofterrorism issuffi cient tojustifyanyexcesswithlittl in thefi ablindeyetohumanrightsabuses.Thisclim ght againstterrorism inNorthAfricaandtheMiddleEastwhileturning of terrorism across theregion. EUMemberStatesandotherswithgreat infl uence, suchastheUnitedStates,haveforgedallia of thegamehavechanged”hasservedtounderminerespect forhumanrights,including freedom ofassociation,inthecontex cooperationoncounter-terrorismInternational amidstatementssuchasthatofthethenUKPrimeMinisterTony Blairthat“the INTERNATIONAL COOPERATION their abilitytoworkintheregion. control oftheGazaStripcouldleaveNGOsopentoriskprosecution forfi nancing of terrorism. Thiscouldseverely curt funding fordevelopmentactivitiesmaybenefi t socialprojects, hospitalsorschoolsrunbyHamassincetheyforcefully tookov and hospitals.Hamasisdesignatedasaterrorist organisationaccording totheEuropean Unionterrorist list.Thepossibility of thisisNGOsworkingondevelopmentandsocialprojects inGazaortheWest Bank,where Hamashascontrol ofmanyschools organisations deemedas“terrorist” insomecountriesmayhavedefactocontrol ofterritorieswhere NGOsare working.Anexam the offence of“terrorism”, canalsohaveadverseconsequencesontheactivitiesofNGOsworkinginareas ofconfl ict, where Legislation criminalisingthefi nancing ofterrorism, particularlywhere itislinkedtoaverybroad defi nition andterritoria those whowouldusecounter-terrorism asajustifi cation forquashingoppositionandclosingdowncivilsociety. partner inimproving humanrightsandtheruleoflaw. Care must betakenonthepartofEUnottoprovide fuelforthefi r In manyoftheregions thattheEUiscooperatingwithinfi ght againstterrorism, civilsocietyisanextremely fragilebu pressure. for HumanRights(OHCHR),UNICEF, UNESCOandUNPD).Thefundswere unfrozen onlyinAugust2005,followinginternational this law, theauthoritiesfroze $250,000belongingtotheAIHR,whichcamefrom UNfunding(TheOffi ce oftheHighCommissioner of theTunisian HumanRightsLeague,KhemaiesK’sila, from itsboard ofdirectors, alsoAIHRboard member. Earlyin2005,using (AIHR), aregional NGObasedinTunis. TheTunisian authoritieshadtriedtopushfortheAIHRremove theSecretary General One exampleofimplementationthislawonthefi nancing ofterrorism wasthatrelated totheArabInstituteforHumanRights

supra note Ibid HRW Submissiontothe HumanRightsCouncil7 April 2008 HRW Letter8May2008 HRW Letter9June2008 HRW Letter18June2008 See forexample CNLT suprap. 15 CNLT supranotepp14-15 non-refoulement 87 http://www.interpal.org/news/latest/news_Lawyers_Working_for_Justice_Jan08.html andtheabsoluteprohibition ontorture, whichprevent returninsuchcircumstances, somestateshavesought http://www.hrw.org/backgrounder/2008/spainletter0508/ http://hrw.org/english/docs/2008/06/09/italy19080.htm http://hrw.org/english/docs/2008/06/18/denmar19151.htm 88 In Israel,theLawonProhibition ofTerror Funding-2005 andthePrevention ofTerrorism 85 establishedanabsolutecontrol overthefundingofindependentNGOs,preventing them http://hrw.org/english/docs/2008/04/07/global18627.htm in absentia intheirhomecountriesforterrorist offences toanumberof 89 Italy, 90 Spain 91 and theUK 86

92 havebeenseekingtodeport 84 Terrorist ﬁ nancing e criticismfrom oftheprinciple t necessary l scopeof ns using ate has se an ld be nces rules that e of (art hts ple ns ail er ct t

the offence forwhichapersonhasbeenrequested needbeacriminaloffence inbothcountriesifitisa“terrorism” typeoffe The surrender ofsuspectsandconvictedcriminalswithintheEUonbasisEuropean arrest warrantnolongerrequires does littletopracticallyimprove NGOcapacitytomonitorhumanrightsabuses. have thefi nancial orpoliticalcapacitytomonitorplacesofdetentioninthosecountriesmore generally. Therefore suchcoope RELATED HUMANRIGHTSISSUES of aEuropean arrest warrant. members ofgroups thathavebeenclassifi ed as“terrorist” inonecountry, butnotinothers,maybepursuedacross theEUbyw to pursuepeopleacross the EU territoryevenwhere suchdefi nitions wouldnotfallwithintheEUdefi nition ofterrorism. Lik This meansthatbroad defi nitions ofterrorism thatexistincountriessuch astheUK,FranceorSpaincanbeeffectively exten prohibition ontorture andexposesthepersontoanunacceptablerisk. is highlycriticisedamongsthumanrightsorganisationsonbothpracticalandphilosophicalbases,asitunderminestheabsolut concluded MOUswithLibya,Jordan andTunisia. Thepracticeofusingdiplomaticassurancesincasesinvolvingarisktorture of organisationsprepared wouldremove tomonitorthesituationofthosereturned, theriskofilltreatment. TheUKhassofar such memoranda,includingdiplomaticassurancesthatthepersonwouldnotbetortured upontheirreturnandtheinvolvement In thiscontexttheUKhassoughtmemorandaofunderstanding(MOUs)withanumbercountries,claimingthatterms problem. willnotbetortureddiplomatic assurancesthatthereturnees ontheirreturntohomecountryasameansofcircumventing 101 100 99 98 97 96 95 94 93 of securityservicepersonnelaccusedtorture. In Tunisia thelawgrantseffective impunitytothesecurityservicesbyestablishingblanketanonymityandcriminalisingn such lawscanbefoundinTunisia person toknowwhetheractionsorstatementsthattheyare apartytomightbecategorisedas“terrorist” innature. Exampleso risk ofprosecution. Thisisexacerbatedbytheproblem of excessivelybroad defi nitions of“terrorist acts”,sothatitisdif burden onNGOs,restricting theirabilitytocarryout work,underminingtheircredibility, andexposingthemtoanunjus Laws whichcriminalisefailure toactasawitnessorreport anyactivitywhichmaybeofa“terrorist” nature canputanun on torture. accepted parametersoftheabsoluteprohibition ontorturehumanrightsbodiessuchastheUNSpecialRapporte ofinternational nature oftheusediplomaticassurancesleavesthoseorganisationsprepared toengagewiththeprocess atoddswiththe action shouldtheyuncoverevidenceoftorture orbeincapableofeffectively carryingoutmonitoring.Theextremely controver have notquestionedtheindependenceofAdaleh,there havebeencriticismsoftheirabilitytoeffectively monitorreturneesor civil society. Inarecent European CourtofHumanRightscase, authorities, whichcaninhibitorganisations’abilitytocommunicate, interfere withtherighttoprivatelifeandhaveachill canbeusedasanexcuseforexcessivesurveillanceandinterceptionSecurity concerns ofcommunicationsonthepart freedom ofassociationandfreedom ofexpression. including againsthumanrightsactivistsandthoseengagedinpeaceful protest andopposition,willclearlyhaveasevere impac national basis. obligations arisingoutoftheabsoluteprohibition ontorture thatseektoexcludeimpunityfortorturers onaninternational torturers orworkingeffectively onsystematicviolationsoftheprohibition ontorture. Suchalawisclearlyinviolation of needed. but thathasbeenrejected bytheUKcourtsasnotbeingsuffi ciently independentoftheregime soastobeeffective whenmost Libya identifi estheQadhafi DevelopmentFoundationasthebodyappointedformonitoringofimplementationassurance incountry,or abletoconductmonitoringofreturnees theUKhassoughttocooperatewithnationalorganisations.TheMOU

CNLT suprap. 14 e.g. HumanRights Watch - Some saidthatthelawrequiringreporting ofanycrimehasputpressureontheirabilitytoadviseortakecasesdomesti See CNLT suprap. 15 Council FrameworkDecisionof13June2002 ontheEuropean Arrest warrantandthesurrender proceduresbetweenMemberStates(2 E/CN .4/2006/6 ofStatefortheHome Department[2008]EWCACiv289atpara79. AS andDD(Libya)vSecretary Liberty andOthersv UK -ECtHRJudgmentof1stJuly2008 Application no. 58243/00 ICCPR 7 Including Article 94 InJordan, theorganisationAdalehhasbeenappointedtomonitorimplementationofMOUs.WhileUKcourts 95 Althoughthoseorganisationshavebeenprovided withtraininginrelation tomonitoring,there isnoindicationthatthey 100 Italsohasaknockoneffect onfreedom ofassociation. Systematicanduncheckeduseoftorture inacountry, http://hrw.org/doc/?t=da and Amnesty International 97 and Jordan. 98 99 Thishasprevented humanrightsorganisationsfrom publishingalistofaccused - http://www.amnesty.org/en/campaigns/counter-terror-with-justice/issues/no-deals-on-torture 101 brought byanumberofNGOs againsttheUK,courtfound 93 In the absence of any international organisationwilling Intheabsenceofanyinternational c violence 002/584/JHA) ing effect on international international ﬁ cult fora bearable totake tiﬁ able aming nce. ewise ration this ded t on that and sial ay ur s, 96 e f

THE IMPACT OF COUNTER-TERRORISM POLICY ON FREEDOM OF ASSOCIATION THE IMPACT OF COUNTER-TERRORISM POLICY ON FREEDOM OF ASSOCIATION 78 RECOMMENDATIONS recently introduced alaw 103 102 to report onactivitiesare disproportionately appliedisoneinwhichhumanrightsdefenderswillfi nd itincreasingly diffi cu abuses thatoccurinthenameofcounteringterrorism. Aclimateinwhichtorturers actwithimpunityandsurveillanceobli terrorism canaddtotheriskofhumanrightsabuseswithcountriescooperatingeachother andtacitlyacceptinghumanrig at combatingthefi effortnancing ofterrorism tocomb canhaveadverseconsequencesforthefunding of NGOs.Theinternational of clearpathsforlegitimateandpeacefulorganisationstochallengetheircategorisationasterrorist organisations.Legislat terroristand international listingmechanismscandestroy thereputation, fi nancingandabilitytoworkoforganisationsin th legitimate groups whoseaims are peaceful,includingthosewhoseektoprotect humanrightsandminoritygroups. Opaquenationa association andrelated rightsinanumberofways.Overlybroad andvaguedefi nitions ofterrorism canleadtothecriminalisa Counter-terrorism efforts andthegeneralclimateofsecurityhavehadaseriousimpactonenjoymentrighttofreedo Conclusion in anearlierdecision,whichnotedthat“theGermanlegislationsetoutonitsfacedetailedprovisions regulating, interference withtherighttoprivatelife.TheCourtwentonpointoutthatdefi ciencies intheEnglishsystemwere hi that UKinterception ofcommunicationsbetweentheUKandIreland basedonaperceived securitythreat wasa disproportionate of theFederalConstitutionalCourtoncompatibilityprovisions withtheConstitution.” the retention ordestructionofthematerial.Theauthorities’discretion wasfurtherregulated andconstrainedbythepublicr selected materialamongstthevariousagenciesofGermanStateandusethateachcouldproperly makeofthematerial;a in whichindividualcommunicationswere tobeselectedfrom thepoolofmaterialderivedfrom ‘strategicinterception’; disclos Strip. Anumberofassociationswere dissolvedbecauseofthepoliticalaffi liations oftheirmembersand/orfounders. opposition movements.Incidencesoftorture increased indetentioncentres andtwodetaineesdiedintheWest BankandGaza allegedly were membersofHamas.InGaza,Hamaslaunchedawide-scalecampaignarrests againstmembersofFatahandall political affi liation wasrevived. Palestiniansecurityforces intheWest Bankbeganarresting anddetaininghundreds ofpeopl In Palestine,sincetheforceful takeoveroftheGazaStripbyHamas,practicearrests anddetentionsonthegrounds of European CourtofHumanRights. communications across theSwedishborder withoutacourtorder. Acomplaintagainstthislegislationhasbeenlodgedwiththe According toICJNewsletter onHumanRightsandCounter-Terrorism, August 25th2008, thislawwasintroduced onJune18th Liberty andOthersv UK supraatpara45 • • • • • • human rightsorganisationsinparticular. States shouldnotusethefi onthepublicingeneraland ght againstterrorism tojustifyincreasedcontrolsandsurveillance The fi ght againstterrorismshouldnotgiverisetoimpunityfortorture. enhance it. Turning ablindeyetoothercountries’ abusesofhumanrightsislikelytoundermineinternationalsecurityratherthan The promotionandprotectionofhumanrightsshouldbeattheheart ofallinternationalcooperationtocombatterrorism. cannot beabusedtocutfundinglegitimategroupsandorganisations. States shouldreviewlegislationonfi nancing ofterrorismtoensurethatittargetsonlygenuineterroristorganisationsand ensure thatorganisationscanknowthereasonsforandeffectivelychallengetheirinclusiononsuchlists. The procedureforlistingandde-listingoforganisationsatanational,regionalinternationallevelshouldbereviewedto and organisations. clearly drawnastoavoidexcessiveinterferencewiththerightfreedomofassociationlegitimate,non-violentgroups States shouldreviewtheirdefi nitions ofterrorism,terroristactsand organisationstoensurethattheyaresuffi ci 103 permittingtheSwedishNationalDefenceRadioEstablishmenttomonitoralloutgoingandincoming 102 Despitethisruling,Swedenhas interalia ently lt towork. e absence ion aimed , theway ghlighted gations

tion of e who ulings ure of m of hts nd at l Discussion Paper on Gender and Freedom of Association in the South and East Mediterranean

by Aicha Ait Mhand

Introduction

The Euro-Mediterranean Human Rights Network, whose members include feminist associations, attaches great importance to gender equality in its efforts to defend and promote human rights, and is concerned about women’s situation in the Euro- Mediterranean region. The Network plans to develop an integrated approach to male-female equality in the region, and for this purpose has created a working group to promote equality between men and women.

The Network has also encouraged its other working groups to integrate the gender issue into their projects in an inter-disciplinary way. It is in this context, that the Working Group on Freedom of Association for the ﬁ rst time devotes a chapter to gender issues in this report on freedom of association in the Euro-Mediterranean region. The equal participation of men and women in public life, political and public decision-making, and in associations, is an integral part of human rights. It is an element of social justice and is a necessary condition for the better functioning of a democratic society, in the sense that freedom of association, along with the freedoms of assembly and expression, is a cornerstone of democracy.

However, freedom of association is very much curtailed in much of the South and East Mediterranean, and women’s involvement in civil society is even more limited, given that men dominate in (both governmental and non-governmental) public structures in these countries. The disparity between men and women in all fi elds, in terms of their degree of involvement, access, rights, remuneration and advantages, is signifi cant, and this is refl ected in women’s involvement in associative bodies. Indeed, the work of civil society associations, which is based primarily on voluntary work and which seeks to meet community rather than individual needs, does not attract women from all sectors of society, and especially not from traditional sectors, where public space is deemed to be a masculine arena to which women should only gain access for issues that directly concern them or their families. Thus the question is how to encourage the equal participation of men and women in civil society, when their social realities are so different.

The equal involvement of men and women in political and public decision-making, particularly through participation in associative life, is vital for the establishment and construction of a Euro-Mediterranean region based on equality, social cohesion, solidarity and respect for human rights. To achieve these objectives, it is necessary to act on all fronts. Many different activities will need to be implemented, and these have to complement one another. This report could serve as a basis for a debate on the work needed to bring about the equal participation of men and women in associative life.

This report does not claim to be exhaustive, as it does not present a country-by-country analysis. Instead, it highlights the major trends in relation to gender and freedom of association in the South and East Mediterranean, and specifi cally in the following countries: Morocco, Algeria, Tunisia, Libya, Egypt, the Palestinian Territories, Israel, Lebanon, Jordan, Syria and Turkey. While it is already diffi cult to assess freedom of association in the same way for all these different countries and territories, it is even more complicated to conduct the same analysis with a focus on gender, since the legal, economic, cultural and social environments often signifi cantly differ from one country to the next.

As for the methodology used to produce this report, the idea was to respond to questions formulated in the terms of reference for this research project, namely:

79 DISCUSSION PAPER ON GENDER AND FREEDOM OF ASSOCIATION 80 for thecommunity, such asfetchingwater, providinghealthcare, andcaringforelderlyfamily members.) individuals (inthiscase women)inthecountriesofSouth, andis often anextensionofwomen’s productive roles. Women community-based tasksthatensurethefunctioning andcohesionofsociety. (Thislastroleistakenonbythepublicsectorin giving birthandraisingchildren, aswellhousework(intheregion underexamination, thisismainly “women’s work”);thes 1 although thisfreedom isrecognised asapublicfreedom, allstateshavefoundwaystolimititinonewayoranother. Bywayo The legislationofcountriesintheSouthandEastMediterranean doesnotspecifi cally question freedom ofassociation.However is exercised inaclimateofinsecurity withalackofprotection. The climateofinsecurityandlackprotection: absence ofdemocracyare all factorspreventing womenfrom participatingfreely inassociations. Sexist laws,patriarchal traditions acceptedortoleratedbytheauthorities,actionsofreligious andextremist groups, an OBSTACLES LINKEDTOTHELEGALANDPOLITICALENVIRONMENT between thesexesinfamilies,andreproductive, productive andsocialroles In addition,withregard towomen’s abilitytotakepartincampaigningwithassociations,itisevidentthatthedivisionofr women’s livesasmuchinprivatepublic. social, religious andculturalnormswhichdelineatetheirdailylives.Theseare oftentransformedintolegalnorms,whi Women are considered tobesecond-classcitizens.Theyare underthetutelageofcommunity, bucklingundertheweightof The mostsignifi cant obstaclestowomen’s fullparticipationincivilsocietyare aresult ofwomen’s inferiorstatusinthear GENERAL TRENDS associations andindifferent countriesintheregion, havebeenincludedinthisreport. in associations.Onlyrestrictions thatwere repeatedly mentioned,andthatwere furtherexplainedbycampaignersfrom differen Analysing thecollecteddataenabledustocreate aninventoryoftheproblems thatrestrict thefullandequalparticipationo report, andonlygeneraland/orcountry-basedstudiesexisted. also wasanimportantsource ofinformation,eventhoughthere were noprevious regional studiesofthesubjectdiscussedinth completed through individualinterviewswithactivistsandexpertsongenderequalitywholiveintheregion. Documentary resea in thefi elds ofhumanrights,women’s rightsanddevelopmentintheelevencountriesexaminedthisstudy. Thequestionnaire These andotherquestionswere includedinasemi-directive questionnaire addressed toactivistsworkingforvarious associatio questioned; whydoesnoneofthisaffect men?Howcangenderbeinstitutionalisedinthestructure ofassociations? they getinvolvedinassociationsandpoliticalorganisations,are assaulted,theirprivacyisseverely infringedon,thei are thediffi culties thatwomencomeupagainstinestablishingwomen’s groups? Women usuallygetinvolvedin charity work;whe need women’s associations?Shouldthere bedemandsforalawonassociationsthatwouldsensitivetogenderissues?What relating totheiractivisminassociations?CanquotasforwomenbeuseddemocraticanddevelopmentDo problemsthey considertheconditionslivein,theirconcerns, andresponsibilities? Shouldpro-women policiesbeestablis associations inorder tobeableinfl uence politicallife?Docivilsocietyprojects respect thefree participationofwomen be madebyalawrespecting andencouragingwomen’s involvementinassociativelife?Shouldwomenbecomemembersof media (inlawandinpractice)?Dotheauthoritiesconsultfeministgroups onquestionsofpublic interest? Whatcontributionc when itcomestofreedom ofassociation?Dowomenhavetherighttogatherfreely andopenlycommunicatetheirideasinthe programmes andpoliciesare formulated,implementedandmonitored? Doesanypsychologicalorphysicalharassmenttakeplace andexperiencesofmenwomentakenintoaccountwhenlegislation, implications thesameforbothsexes?Are theconcerns associative work?Whatare theimplicationsformenandwomenofpoliciesprogrammes linkedtoassociations? Are these associations experience?Are there any(legalordefacto)restrictions onpromoting, limitingorprohibiting women’s involveme Do womenfaceparticularproblems compared tomen? What gender-related diffi culties dowomenwhowishtobeinvolvedin more pertinenttogroup theobstaclesaccording totheirunderlyingcauses. association. However, tofacilitatereading ofthisreport, makerecommendations, andtoprogram workableaction,itwouldappe preventing womenfrom joiningassociations,andthose limitingtheiractiveandqualitativeparticipationoncetheyhavejoined in associativeworkfrom fullyexercising theirrighttobe involved. Theobstaclescanbeclassifi ed intotwotypes:thosecom To summarise,theenvironment inwhichwomenlivetheSouthandEastMediterraneanprevents mostwomenwithaninterest much timeforassociativework. Fromasociologicalperspective, women’s productiveroleincludes work With someexceptions,freedom ofassociation,whenitexistsintheregion,With performed inexchangeforpayment(also paymentinkind 1 assignedtowomengenerallydonotleavethem the countriesofNorth, andbygroupsor thus manage and provide various services thus manageandprovide variousservices ocial roleincludesadministrativeand ); thereproductiveroleincludes esponsibilities r moralsare f women anddo ch rule pletely d the was nt in ould hed an rch ea. ns ar is n t , f end inmurder. these societies,feminicideand“honourcrimes” traditional socialsectorssincewomenmayfearthattheywouldbetargetedbecauseoftheircommitmenttoassociativelife: i the perpetratorsof“honourcrimes”,undoubtedlyhasanimpactoninvolvementasignifi cant percentage ofwomenfrom For example,criminallawwhich,incountrieslikeJordan, Syria,Egypt,Palestineandothers, grantsextenuatingcircumstances campaigns whichmightruncountertotheircountries’traditionsandculture. and Islamistfascistgroups, womenare oftennervousabout joiningmixedmaleandfemaleorganisationsbecominginvolvedin participation inassociationsthanitdoesonmen’s. Becauseofsexistlawsthatfailtodefendwomenagainstpatriarchal tradi Indeed theinegalitarianarsenalthatexistsatalllevelsoflegalsystemshasamuchmore signifi cant impactonwomen’s the harder forwomentoparticipateinassociations. issue ofdifferential treatment andmale-femaleinequalityintheotherlawsthatdirectly affect theirlives.Ofcoursethism in thecountriesstudiedforthisreport. However, inadditiontotheproblem thattheselawsare poorlyimplemented,there is Inegalitarian laws: countries, butespeciallyinSyria,Tunisia andAlgeria. scares womenprimarilybecauseoffamilypressure.” Mediterranea andEastern Thisisacommonstateofaffairs inmostSouthern is carriedoutentirely illegallybecauseassociationsare notgrantedauthorisation.Thethreat ofreprisals isalwayspresent own familiestoleaveassociationsbecauseoftheclimateinsecurityinwhichtheywork.Sheexplained:“Theworkassocia Ms. NawalYazeji, afeministandexpertonassociativelifeinSyria,reported, forinstance,thatwomenactivistsare pressure gaining accesstojustice.Publicopiniongenerallyconsidersactivismbemen’s work. Women are indeedmore easilyintimidatedbecauseofalackpublicsolidaritywiththeircauseandthediffi culty theyhavei aims tohighlighttheimpactofthesepracticesonequalinvolvementmenandwomeninassociations. All thisisdetailedinotherchaptersofreport onfreedom ofassociationintheEuro-Mediterranean region. Thisthematic complaints forattacksonhonourorlibel;arrests; andtheintimidationsearch ofassociations’campaigners. more andmore powersfallingwithinthecompetenceofpoliceandintelligenceforces; thethreat oflegal constraintsand of procedures. Thisincludeslegalproceedings brought againstcampaigners;anti-terrorist legislationattackingfundamentalri More generally, itcanbesaidthat,inthemajorityofcountriesstudied,freedom ofassociationisrestricted through an adopting newlegislationinthenameoffi ght againstorganisedcrimeandterrorism. association orfortherenewal ofitsstructures islimited.Inothercountries,theauthoritiesfurtherrestrict freedom ofas often requires themtotravel.Thisisnotalwayseasy, especiallyforwomenorwhenthetimedeclaringestablishmento that havetobeprovided, andinparticularbythepolicerecord thatexecutiveoffi cers havetoobtainattheirplaceofbirth In Morocco, where associationsare slightlymore tolerated,declarationprocedures are complicatedbythekindsofdocuments while thoseassociationsthatdoexistare notpermittedtoholdgeneralassembliesandare considered tobeillegalorganisati example, andjusttomentiontheextremes, settingupnew, independentassociationsisvirtually impossibleinSyriaandTunisi 2 to decision-makingjustoneofthesexes. the region thatbansdiscrimination onthebasisofsex.Thusnothingprevents associationsfrom usingtheirstatutestolimit the whole,theyare egalitarianinthecountriesexaminedforthisstudy. However, theTurkish lawonassociations istheonly thelawsonassociations,ithastobesaidtha associations, andespeciallythosewithmixedmalefemalestaff. Concerning there, however, andthatwomenthreatened bythiswouldcertainlyshyawayfrom exposingthemselvesbygettinginvolvedin Some womenactivistsfrom Syriadidnotthinkhonourcrimeshadanythingtodowithassociations. We believethat theriskis However, duringthecourseofthisresearch project, nocasesofhonourkillingswere reported inthequestionnaires andinterv covered upashonourcrimes. by theperpetratorisoftenenough.Insomecases,thesecrimesare committedforeconomic andinheritancereasons, butare example, of“violatingthefamilyhonour”.Thisisaveryreal risk,asnoproof isrequired forthistypeofcrime.Themotive By beinginvolvedinmixedmaleandfemaleassociations,womenthesecountriesriskmurdered iftheyare suspected,fo “Honour crimes” usuallybeginwiththreatsagainst girls It istruethatmenandwomenare onanequallegalfootingintermsoftherighttoparticipate inassociations and womenbyother family membersaccusingthemofseeking toviolate 2 are stillfairlysignifi cant, representing thebloodiersideofpatriarchal dictatorship. the family’s “honour”, andmostoften sociation by akes itall declared d bytheir chapter , which access abuse one in iews. ; this ghts; tions tions t, on ons. f an for the a, n n n r

DISCUSSION PAPER ON GENDER AND FREEDOM OF ASSOCIATION DISCUSSION PAPER ON GENDER AND FREEDOM OF ASSOCIATION 82 and associativeresponsibilities, familyanddomesticresponsibilities increase theburden onwomen’s time.Women whoearn Women’s lackoftime: in thesesocieties,theilliteracyrateforwomenisgenerallymuch higherthanformen. from participatingincivilsociety work.Civilsocietyworkindeedrequires acertainlevel ofeducationinorder tobeeffect Access toeducation: are signifi cant barrierstowomen whoconsiderdevotingtimetoassociativework. the scantparticipationofwomeninpoliticallifeare alsofactorspreventing womenfrom developingtheirfullpotential.Thes discrimination andpreventing themfrom assertingandexercising theirrights.Fairly limited career prospects, unequalsalarie among womenthanmen.Indeedpovertyisbecomingincreasingly feminised,trappingwomeninthemultipleshacklesof with travellingtomeetingsthemselves,doesnotattractwomenbecausepovertyhasbeenspreading disproportionately faster Associative work,whichmainlyconsistsofvoluntarywithactivistspayingmembershipfeesandthecostsassociated countries intheregion. this respect, especiallyincountriessuchasMorocco, where freedom ofassociationisbetterguaranteedincomparisonwithoth life wastheeconomicsituation.Lackofaccesstofi nancial resources iswhatprimarilyprevents womenfrom exercising theirr Poverty: in general. of attitudesbasedonprejudices, archaic normsandvalues,hamperingtheempowermentfullinvolvementofwomeninsociety The extentoftheseobstaclesdiffers from countrytocountry. Theyconstituteinvisiblebarriers,whichcome tothefore inth The social,culturalandreligious obstaclestothefulldevelopmentofwomeninsocietygenerateproblems associatedwith pove OBSTACLES LINKEDTOTHEECONOMIC, SOCIALANDRELIGIOUSENVIRONMENT Confl NGOswhotheyconsidertobesuspicious...” of meetingembassyrepresentativesandforeigninternational foradvantagesinkind.TheyhaveputtogetheradossiersayingthatIbeenmisappropriatingassociationfunds.I’m return atBlidaCTRIarespreadingdamaginginformationaboutmeandgettingmembersoftheassociationtotestifyagainst services slightest fauxpas.ThesemeasureshavebeentakenagainstmeinsuchawaythatIcan’t legallycontestthem.Inaddition,the accommodation providedbymyjob,whereIhavelivedfor12years,andwasthreatenedwithdismissal15yearsinprison affairs offi ce inBlidaanddeprivedofthebenefi ts whichaccompanyitandofpartmymonthlysalary. Thisweek,Iwasevic training inMoroccoontransitionaljustice,thingshavebecomeworse.Ijustbeenstrippedofmypositionresponsibili the pastmonths,followingmyparticipationinseminarsabroad,particularonterrorismandIslamistmovements,afterun continue toopposetheimplementingdecreesofnationalreconciliationcharterandbecauseIdoitwithinanorganisation.. but theyarenotharassedasmuchIam...Foryearshavesufferedallsortsofintimidationbecausedaredtospeak because sheisawoman: Islamiste” predominate intheregion. HoweverMsCherifaKhadar, president oftheAssociation Relationship withtherulingpowers: than men,inviewoftheheavyburdens thatwomenhavetoshoulderelsewhere intheirdailylives. objectives related tohumanrights,women’s rightsandthepromotion ofdemocracy. Thisstateofaffairs discourageswomenmore in apsychologicalandpoliticalclimatethatisnotfavourabletochangetheregion, makesitdiffi cult forassociationsto The diffi associations. In addition,thelackofsecurityinpublicarena, particularlyintheevening,furtherlimitswomen’s involvementinthese recognised) andlaunchattacksontheirfreedoms. support ofthepopulation(orevenauthorities)fortheirroles intheseconfl icts, oftenopposewomen’s rights(asunivers religious groups haveanimpactontheinvolvementofwomeninassociations.Thesegroups, whichinsomecountriesenjoythe ict andwarsituations: , maintainsthatshesuffers harassmentfrom theAlgerianauthoritiesforherstanceagainstnationalreconciliation charte culty associationsfaceinachievingtheirobjectives: Thoseinterviewedduringthepreparation ofthisreport saidthattheprimaryobstacletowomen’s involvementinassociative Girls’limitedaccesstoeducationremains animportantfactorthathinderswomen,more sothanmen, Women are oftenoverextended. Whileitisdiffi cult forbothmenandwomentoreconcile theirprofessional “Men in associations who are activists like me are more scathing in their opinions against the government, “Men inassociationswhoareactivistslikememorescathingtheiropinionsagainstthegovernment, InLebanon,Algeria,IsraelandthePalestinianterritories,confl icts aggravatedbytheactionsof Both womenandmenare subjecttointimidationbytheautocraticpowersthat Thenature ofassociativework,thediffi culty ofworking “Djazairouna des Familles Victimes duTerrorisme“Djazairouna desFamillesVictimes ive; however, ty atthelocal ted fromthe countries’ e reasons accused dergoing achieve .; butfor security out and e form ight in s and the ally rty. in er r

campaigned totakethe aggressortocourt. The caseis inprogress. such asteachingthemtoreadandwrite andraisingawarenessofhumanrightswomen’s rights inparticular. Itwassupporte rights. Inaddition,certainpredominantly religious satellitechannelshaveasimilarlynegativeimpactonwomen’s involvement promote negativeimagesof womenactivistsandvilifytheirwork,especiallytheworktheycarryoutindefenceofwomen’s tions astheirmalecolleagues.However, thepress’ andmediaoutlets’views on genderequalitydiffer. Forexample,pro-Islami The press andthemedia: and harassmentfrom oneoftheassociation’s neighbours,whobelongedtoanIslamistgroup. them andtheirassociations.ThisiswhathappenedwiththeMoroccan association“Amal”,whosememberssuffered aggression great pressure from society, andespecially from malechauvinists, whousuallyinvokereligious pretexts tomobilisecitizensa defend equalrightsformenandwomenpubliclyrefer totheuniversalhumanrightsframework. Suchwomenoftencomeunder attitudes towards womenwhoare activeinassociations.Thisisespeciallythecaseiftheseassociationsare politicalincha Societal pressure: diffi culties gettingaround, andpressure from societyprevail inthesedistricts. to overcome. Civilsocietyworkisoftencarriedoutintheevening,andwomenprefer toavoidreturninghomelate.Safetyissu are managedbymen.Itisalsoworthnotingthat,eveninthetowns,womenwholiveworking-class areas havemore problems In addition,inruralareas ofcertaincountrieslikeMorocco, women’s involvementisfairlyrestricted andvillages’commercia future, saidMsLeilaNafaa,aJordanian feministandpresident ofthenetwork“Arab Women Organisations”. to fundingsubjectauthorisationfrom theCouncilofMinisters,developmentassociationsare atriskofdisappearinginthe Distance from thecentre canalsoposefundingproblems. IncertaincountriessuchasJordan, where thenewlawhasmadeaccess in areas closetothecentres ofpower, while associationsinmore remote regions are mostly developmentandcommunity-based. policies ineachcountryandtheextentofterritory. Generally, however, associationscanmore easilyengageinadvocacyw fi elds ofactivityare notasvariedinthecountrysidetheyare inthetowns,anddependon developmentofdecentralisa Place ofresidence: majority ofwomenactivistsfrom travellingforcivilsocietyactivities. abolished, culturalfactors,familyresponsibilities, travelcostsandassignmentswithincertainassociations fathers orhusbandsforpermissiontogetapassportleavethecountry. Buteventoday, whentheseprocedures havebeen networks. Previously, travelling(andespeciallyabroad) wascomplicatedbylegalprocedures requiring womentoask The result ofthisstateaffairs isthatwomenare under-represented innationalassociationsandnational,regional andint night, foranyreason...” most importantly, exposethemselvestoallsortsofharassmentbecause‘respectable’womenshouldneverbeoutsidetheirhomea reasons. It’s mostlyforwomenthatsafetyissuesincoachstationscomerighttothefore.Women riskbeingphysicallyattac atthecoachstation,orderinghimselfateainpeaceandquiet.[...]Womeno’clock inthemorning cannotdothisforcultura towaitforh and,afteradayofmeetings,return take acoachatnightfromremoteregionofMorocco,arriveinthemorning reasons, othersaremoreputoffbythemeansoftransportonoffer, traveltimes,thecostofgetting aroundetc...amancan Chafi i, Director oftheObservatoryforFreedoms inMorocco explainedthat in civilsociety. Women prefer togetinvolvedinlocalactivitiescloserhomeavoidproblems associatedwithtravel.Mr Travel: responsibilities thatsocietygenerallyassignstowomen,suchaschildcare. belong tothemiddle,ifnotwealthy, classes.Theirincomes,ortheirfamilyallowthemtodelegateservantssome time toassociativeworkinthesamewayasmen.Thisisoneofreasons whyithasbeenarguedthatmostactivistwomen shown thatwomenare muchmore someexceptions,theresult overburdened isthatwomenare thanmen.With unabletodevote that, duringtrainingsessionsongenderforcivilsocietyactivists,exercises onmanagingwomen’s andmen’s timehaveconsist money, bearchildren andtakeonarole inthecommunityfi nd ithard tobecomeactiveinassociations.Itisinteresting tono 5 4 3 rights organisations.) human rights,andwomen’s rightsinparticular. (ExceptforTurkey, where themajorityofwomenactivistsprefer tojoinwomen’ associations. Thisposestheproblem ofsuccessionandrecruiting newmembersforassociationsworkingtodefendand protect importance ofcampaigningwithassociationsprefer tostickcharityworkorgetinvolvedindevelopmentandcommunity-bas To escapethispressure, andtoevadeprejudice anddominantsocialmodels,alargenumberofwomenwhobelieveinthe See the2007EMHRN reportonfreedomofassociationinthe Euro-Mediterranean region, page94. Cf. paragraphonthenatureofwomen’s assignmentswithinassociations. This associationhasitsheadquartersina working-classdistrict, works withwomenwhoarevictimsofviolence, andorganises Thediffi cultiesassociatedwithwomentravellingtotakepartinactivitiesothertownsorcountriesrestrict theirinvolv 5 SocietiesintheSouthandEastMediterraneanare mostlytraditionalandthepopulationsdevelopnegative

Women’s placeofresidence canincertaincasesrestrict theirinvolvementinassociations.Associations’ Women activistsworkingwith associationsgainaccesstothemediaunderalmostsamecondi- “...Some womenavoidtravellingforfamilyorcultural 4 activities forwomeninthecommunity, d bycivilsocietyandlawyerswho 3 continuetoprevent the l andsecurity quite is busat2 ernational ernational l activities ked and, racter or Mostafa te here ement gainst

of the easily ently near their tion ork es, sts ed in s t

DISCUSSION PAPER ON GENDER AND FREEDOM OF ASSOCIATION DISCUSSION PAPER ON GENDER AND FREEDOM OF ASSOCIATION 84 6 - - - three principalmotivesforwomen’s involvementinassociations’decision-making: utilitarian considerations,ratherthanaconvictionthattheyhave arighttobeinvolved.AstudyoncivilsocietyinMorocc female benefi ciaries ofitsprojects. Itappearsthat,generally, womenare oftenintegratedindecision-makingprocesses duet women are sometimescalled ontojointheexecutivestaff merely toplayanintermediary role betweenanassociation andthe In addition,MrMostafaChaffi , Director oftheMoroccan Observatory onFreedoms, notedthat,indevelopmentassociations, able todoformore thantenyears. president MrMokhtarTrifi allowedhimtoorganiseageneralassembly, explained,ifthegovernment somethinghehasnotbeen Human Rights’executivestaff, forexample,consistsof25menandthree women,althoughthiscouldchange,astheorganisation female associationsweconsultedforthisresearch project were nevermadeupofmore than25%women.TheTunisian Leaguefor It isalsoverydiffi cult forwomentogainaccessexecutivepositionswithinassociations.Thestaff ofthemixe only toproject acertainimage,whiledecisionscontinuetobemadewithoutactuallyconsulting women. thousands, thenumberofthoseledbywomenisinsignifi cant. Itmustalsobenotedthatsomeassociationselectwomenasheads network ofNGOs.Butconsideringthenumberassociationsworkinginregion, which isestimatedtobeinthehundreds of women tothepostofpresident. Theseinclude, not change.Thisisageneralphenomenon,however, andtoourknowledge,somemajorMoroccan organisationshaveelected decision-making positions.Intheseassociations,thepresidents sometimesremain inthepositionforlife,andexecutiveposit The lackofdemocraticmechanismswithinalargepercentage ofassociationsisalsoasignifi cant factorlimiting women’s acces female superiors,bothforculturalreasons andbecausetheylackconfi dence inwomen’s abilitytotakeonpublic responsibilit to takeontheburden andheavyresponsibilities thatcomewiththeposition.Butanotherreason isthatmenare reluctant toa association ismore diffi cult thangainingaccesstoassociations’executivepositions,whichispartlyduesome women’s ref whether theyworkindevelopmentordefendhumanrightsandpromote democracy. Gainingaccesstotheoffi ce ofpresident of an place indiscouragingwomenfrom gettinginvolvedinmixedmaleandfemaleassociations and existsinalltypesofassociations The diffi issues. theworkinghourscauseseriousfami salaried womeninassociationsthatwespoketosaythat,spiteofthemoneytheyearn, abandon civilsocietyworkaltogetherortojusttakepartinoccasionalpublicactivitiesorganisedbytheirassociations.Eve hours are amajorobstacletowomen’s fullparticipationinassociations.Afteratrialperiod,great manywomendecideeithe who havefamiliestolookafter. Thequestionnaire andinterviewsconductedforthisreport alsosuggestthatinconvenientwork or duringtheweekendsandonpublicholidays.Thesehoursdonotsuitwomenwhocannotcomehomelateinevening Inconvenient meetingandworkinghours: puts obstaclesinthewayofwomen’s participation. The wayinwhichassociationsare run,similartothewayinwhichpoliticalinstitutions(including politicalparties)are run OBSTACLES LINKEDTOTHEASSOCIATIVE ENVIRONMENT case withanassociationinTurkey, whichworkedtodefendtherightsoflesbians Religion: these countries. Islamist orpro-Islamist press andmedia,butalsoexistinotherwhichrefl ects theculturalandtraditionalenvironmen accordance withthereligious precepts theypreach. Itisimportanttonote,however, thattheseviewsare notonlylimitedto public life,andespeciallyinassociations,becausetheyencouragewomentokeepoutofthearena asmuchpossible, 2008. See article: process oftenare related tothepresident oftheassociation.) It bolstered theleadershipofpresident oftheassociation.(Women whoare encouraged toparticipateinthedecision-makin in theexecutiveoffi ces ofNGOs. It madeitpossibletoensure thattheassociationwouldreceive funds,sincedonorsincreasingly require thatwomenbereprese dressmaking, knitting,andliteracy programmes), whilethemenwere responsible forpoliticalandfi nancial decisions. It allowedwomentolookafterthefemalebenefi ciaries ofprogrammes (forexample,withactivitiesrelated tosewingand culty ingainingaccesstoexecutivepositionsanddecision-makingposts: http://www.amnesty.fr/index.php/amnesty/agir/campagnes/defenseurs/actions/turquie_respecter_la_liberte_d_association_des_lgbt Even whenastateisostensiblysecular, anassociationcanbedissolvedifitattacksreligious principles.Thiswasthe Associations’activitiesandmeetingsusuallytakeplaceintheevening,afterwork, inter alia , theAMDH,OMDH,AMSED,EspaceAssociatif,Moroccan Euromed 6 andwasdissolvedbytheauthoritiesinMay Thisobstacletakessecond d maleand , generally o found ions do ccept n the nted usal the s to r to t in ing in y. y. ’s ’s ly g o ,

conduct internal reviews ofgenderissuesandtodiscusswaysintegratethisapproachconduct internal intheirfunctioningandstructures. region. Whilethere are novisibleresults yet,itis interesting tonotethat,insomepilotprojects, NGOsandnetworkshave and more projects aimingtointegrateagenderapproach inthestructures andfunctioningofNGOsare beingdevelopedinthe of policiestocombatgender-based discrimination.However, toconcludeonamore positive note,itmustbepointedoutthatmo selection ofstaff, staff development,theavailabilityofparent andchild-friendlyworkenvironments, andtheexistencee opportunities formenandwomenequalaccesstoanykind ofresources. Thisinvolvespoliciesregarding the recruitment an level,gendermainstreaming seekstoensureAt theinternal thatallorganisationalpoliciescontribute totheachievementofe on women’s participationinpubliclifegeneral. countries usethistranslationfortheirownadvantage,toencourage adebateinsocietythatisagainstwomen.Thishasanimp the translationofword “gender”from EnglishandFrench intoArabicposesaserious problem. ReligiousmovementsinArab debate ontheconfrontation betweenmenandwomen,insteadofthetraditionalbattle socialclasses.Moreover, even way everywhere. Someassociations,andespeciallythosespecialisingindevelopment,believe thatthisnewapproach focuses up byassociationsingeneral.Theapproach itselfisnotsuffi ciently understoodandthetermisnotalwaysdefi ned inthesam Gender approach notsuffi association... plus,womeningeneralfearfortheirreputations...” happened. Associativeworkbeingvoluntary, theonlychoicetheyhave,inabsenceofanyclearlegalprotection,istoleav but womenneverpubliclytalkaboutit;theyitamongstthemselvesdon’t daretospeakoutandsaythatit trainer ongenderinMorocco andtheArabregion, toldus that report, buttheyadmittedtohavingeithersuffered sexualharassmentor, more often,tohavingwitnessed it.MsKhadijaErreba cases ofsexualharassment,theissuewasraisedbyseveralpeopleduringinterviews.Theserefused tobecitedint this study, andwhilenoneofthosewhocompletedthequestionnaire responded affi rmatively whenaskediftheyhadencountered train peopletobemore civic-mindedandthatpromote mutualrespect. However, sexualharassmentwasasubjectofinterest for would beeasytobelievethatthisphenomenoncouldnotpossiblyexistwithinassociations,astheseare thoughttobeplacest Sexual harassment: in cafesandpublicspaces.Thisoftenresults inwomenbeingexcludedfrom associativework. democratic way. Inaddition,mencontinuetorely ontheiroldnetworksfortheexchangeofinformation,whichconsistmeeti methodsofcommunicationare notsuffibecause modern ciently beingused.Evenwhentheyare, informationiscirculated inan 7 The diffi getting involvedinrepresenting theirassociationsinotherarenas...” that theirmalecolleaguesgenerallyonlyinformedthemoftripsthedaybefore, andthatthispracticeinvariablyprevented th network ofmore than80associationsoperatingindifferent Morocco, areas thefemaleparticipantsexplai inZagorasouthern Ms KhadijaErrebah, anexpertandtrainerongenderissues,reported that,“duringatrainingworkshopongenderthat[she] ran leave thecountry. said that,duetomilitaryservicerequirements, meninSyriafactfacedmore restrictive procedures thanwomeniftheywant explained, womenare oftendiscouragedbymenwhowouldrathertakeadvantageofatripabroad themselves.MsYazeji also from home.However, thisisnotalwaystheprimaryreason. Whenitcomestotravellingabroad, MsNawalYazeji, aSyrianactivi mechanisms inplacethatcouldrequire themtoheedthisdirective. Onereason forthisisthatitdiffi cult forwomentotr networks are male.Somenetworksandorganisationsencouragetheirmemberstoberepresented bywomen,buttheydonotput Moreover, thevastmajorityofrepresentatives inmixedmaleandfemaleassociationsnational,regional andinternational women saidthattheyknewnothingaboutthefi nances oftheirassociationsandwere notinvolvedinanyfi nancial decisions. been involvedintheirassociations’logisticalwork,whileonlyfewhadtakenpartstrategicplanning.Atthesametime,80 The nature ofwomen’s assignmentswithinassociations: that haveapoliticalcharacter, andinparticularhumanrightsorganisations. associations integratewomenmore easilythanolderones.Paradoxically, themostchauvinisticorganisationsare generallythos Meanwhile, thesamestudyindicatedthatsituationdependedonnature, themissionandageofanassociation.Newer organisation. and theworkofNGOs workingfordemocraticdevelopmentin Morocco;2-genderandorganisation: aguideforself-evaluation fo Cf. threestudiesconductedin2007bytheMoroccanorganisation culty ingainingaccesstoinformation: Sexualharassmentisaseriousattackonwomen’s dignity, whatevertheenvironment inwhichitoccurs.It ciently widespread: Espaceassociatif There isnotmuchevidenceofinformationbeingcirculated withinassociations, Thegenderapproach andits instrumentsare notissuesthathavebeentaken “Sexual harassmentmostcertainlydoestakeplacewithinassociations... : 1-genderandorganisation: theintegrationofagenderapproachinstructures Allofthewomeninterviewedforthisreport saidthattheyhad r MoroccanNGOs;3 -genderand nforcement % ofthese begunto em from avel far 7 ed to e the fora qual ned h, a ngs has hat act his st, ti- re re d e e

DISCUSSION PAPER ON GENDER AND FREEDOM OF ASSOCIATION DISCUSSION PAPER ON GENDER AND FREEDOM OF ASSOCIATION 86 Euro-Mediterranean institutions,civilsocietyintheEuro-Mediterranean region, regional networksandtheEMHRN. contribute tothisprocess. Theyare directed partnersandbackers,theEuropean attheauthorities,governments, Unionand Nevertheless, everyonecanwork inhisorherown way to research project. Training onthegenderapproach anditsinstrumentsiswelldevelopedintheregion, butisnotactuallyappl but thattheycannotchangeanything.Self-sacrifi ce characterised theinterviewsthatweconductedwithactivistsaspartoft women are insuffi ciently involvedinassociations.Theysaythattheyare united,understanding,andthattheyshare thesamev The studyconductedforthisreport suggestsanatmosphere ofresignation incivilsociety. Maleandfemaleactivistsacceptth women campaignwiththesameassociationsastheirhusbands,butoftenoccupylessimportantpositions. male membersoftheirfamilies.ThiscanbeobservedinallthecountriesSouth,buthappensmostoftenEgypt,where cultural reasons discussedabove.Inaddition,toescapesocialpressure, somewomenactivistschoosetocampaignalongside However itisimportanttopointoutthatwomenactivistsoftencomefrom themiddleorupper classes,foralltheeconomicand participation, andwhere theworkdonebylocaldevelopmentandcommunity-basedassociationsgenerallybearsfruitquickly. development associations.ThisismainlyinMorocco, where theassociativeclimateisgenerallyfavourabletobothmaleandfem However, wefoundthat,intheMaghreb, alargernumberofyoungwomenworkedinassociations,andespeciallyyouthloca make itdiffi cult togetmorenewwomenintakeover” women whoare settledintheirfamilies. withtheirdailyneeds.” that age.Thechildrenareindependentandwomenlessconcerned Leila Nafaa,President ofthenetwork“ArabWomen Organisations”. “We’ve ascertainedthatmostwomenactivistsareovertheageofforty, evenretiredincertaincountriessuchasSyriaorJord the statementsofeminentfemaleexpertsandactivistsfrom associationsinthecountriesunderexamination. their countries.However, intheabsenceofstatisticsonwomen’s involvementinassociations,thequestionhere hasbeentor landscape inotherways.Thishastodowiththeprofi le ofwomenactivists,whoonlyrepresent asmallsegmentofthesocietie presence andparticipationinassociations,obstaclestowomen’s involvementinassociativelife,alsoaffect theassociati quantitatively andqualitativelyincivilsociety. Inaddition,thenegativeconsequencesofmale/femaleinequalityinterms region examinedinthisreport isverymuchrestricted whengenderisconsidered, becauseitisdiffi cult forwomentoparticip promote aculture ofequality, infl uence publicdecisions,etc.However, asthisstudydemonstrates,freedom ofassociationin Freedom ofassociationandtherightsassociatedwithitare ofcrucialimportanceforwomen,astheyhelpthemdefendtheirri Conclusions RECOMMENDATIONS - By integrating the gender approach, in its cross-disciplinary dimension,intoallpublicpolicies; - Byintegratingthegenderapproach,initscross-disciplinary It isthedutyofgovernmentstocreateanenvironmentwhichencourages women’s participationinassociations: Recommendations togovernments: association inparticular. awareness ofandpromotingacultureequalitycanaccelerategender equalityingeneral,andrelationtofreedomof legal reforms,becauselegislationandrestrictivetextsingeneral canbecomewomen’s fi rst-class allies.Equally, raisi them atadisadvantagewithintheircommunitiesinrelationtomostmen. Itisaquestionofworkingatalllevels:theleve access toandcontrolovereconomicpoliticalresources,bylegal andculturalnorms,bysocialvalueswhichput As setoutabove,women’s freedomandabilitytoexercisetheir righttoassociationisfrequentlyunderminedbyalackof General recommendations: “Career ambitionsontheonehand,andfactthatassociativeworkisdevaluedother, , saidMsYazeji, theSyrianfeminist. change thissituation,and the “This ismainlybecausefamilyresponsibilitieshavelessenedat following re Societyalsolooksdifferently upon commendations aimto women’s l of ng an,” alues, ied. eport ghts, said s of the ate ale his ve at l

- - - - Defend,reinterpretandextendcertainrightstohelpwomenassert themselvesinassociations; - - PromotefreedomofassociationconsciousgenderequalityintheEuro-Mediterraneanregion; Recommendations totheEMHRNanditsthematicgroupdealingwithfreedomofassociation: - Periodicallysubmitstoanauditongender. - Linksdevelopment,genderandcitizenshipasaconditionforthesuccessofallmodelslastinghumandevelopment; - Reformulatescitizenship,combatingwomen’s exclusion; - Questionsthesocialrolesassignedtowomen; - - Institutionalisesthesystemofquotasinitsstructures,parityevenhumanrightsassociations; - association: It isimportantthatevery Recommendations toEuro-MediterraneanCivilSociety: - - - It isthereforeimportantto: men andwomeninthiscivilsocietycanonlymakeitmoreeffective. The BarcelonaDeclarationstressestheroleofcivilsocietyinEuro-MediterraneanPartnership.equalinvolvement Recommendations toEuropeanUnionandEuro-MediterraneanPartnershipinstitutions: involved atalllevelsandindecision-makingpartnerassociations. in foreignco-operation,theEuropeanCommissionshouldalsoinsistonthisaspectofdemocracy, i.e.insistthatwomenbe decision-making structures.UNbodiessuchastheUNDP, UNFPA andUNIFEMhavealreadyadoptedthisapproach,but Partners andbackersmustadoptthegenderapproachintheirthinkingdemandthatassociationsinvolvewomen Recommendations topartnersandbackers: - Bymakingpublicfundingforassociationscontingentuponmenandwomen’s equalinvolvementinassociativework. - - - ontheCEDAW- Byliftingthereservations andratifyingitsfacultativeprotocol; Human RightsNetwork. Hence itisworthextendingthisstudytoincludeallthecountriesembraced bytheactivitiesofEuro-Mediterranean as regardstheopportunitiesofferedinpublicdomainsgeneral,industrial countriesdonotnecessarilytakeﬁ rst place. in theNorthMediterranean,becauseproblemofequalmale-female participationisnotconﬁ ned totheSouth.Indeed, In itsnextreportonfreedomofassociation,broadenthestudygender andfreedomofassociationtoincludecountries Promote networkingintheEuro-Mediterraneanregiontoimprove situationofwomeninthisregion; expressions ofactivecitizenship; outactionsaimed atreinforcingthecapacitiesoffeministassociationsinregionbecausetheyarepowerful Carry member associations; Monitor theequalpresenceandinvolvementofmenwomeninnetwork’s structuresandintheofits and onstrengtheningthecapacitiesofmalefemalecampaignersinassociations; Increases itsmale/femaleequalityawareness-raisingactions,togetherwithtrainingactivitiesonthegenderapproach and familialresponsibilities; Puts inplaceaworkingstructureandformoforganisationwhichhelpsmenwomencombineassociative,professional are theassociationsmosttargetedbyretrogrademovementsgaininginpowerthesecountries. Financially andpoliticallysupportfeministassociationsinthecountriesofSouthEastMediterraneanbecausethese women’s fullparticipationeitherdirectlyorindirectly; Take measuresagainstpartnercountrieswhicharefailingtorespectfreedomofassociationandpreventing necessary decision-making structuresofassociations; take toguaranteefreedomofassociationformenandwomentogetherwiththeirequaleffectiveparticipationinthe Plan, intheassociationagreementsandactionplansofneighbourhoodpolicy, concreteactionthatgovernmentsshould right toparticipateinassociativework; By genderizinglawsonassociationsatthelinguisticlevel.Howeverthesemustalsoguaranteemenandwomen’s equal centred uponthefamilyandparentalleave,measuresaimedathelpingpeopletolookafterchildrenoldpeople; By doingthingswhichmighthelppeopletoreconcilefamilylifeandpubliclife,forexamplebybringinginprogrammes association; By protectingandpromotingmenwomen’s equalcivilandpoliticalrights,whichexpresslyreferstofreedomof 87

DISCUSSION PAPER ON GENDER AND FREEDOM OF ASSOCIATION Number of associations

Palestinian Territories

Number of Associations per 1 000 Inhabitants