Counter-Terrorism and Human Rights in the Courts Guidance for Judges, Prosecutors and Lawyers on of EU Directive 2017/541 on Combatting Terrorism Counter-Terrorism and Human Rights in the Courts: Guidance for Judges, Prosecutors and Lawyers on Application of EU Directive 2017/541 on Combatting Terrorism International Commission of Jurists (ICJ) Human Rights in Practice (HRiP) Nederlands Juristen Comité voor de Mensenrechten (NJCM) Scuola Superiore Sant’Anna di Pisa This Guidance was written by Helen Duffy (HRiP), Róisín Pillay and Karolína Babická (ICJ). November 2020 Counter-terrorism and human rights in the courts: guidance for judges, prosecutors and | 3 lawyers on of EU Directive 2017/541 on combatting terrorism Table of Contents I. Introduction ............................................................................................................. 5 II. Applicable international law standards in law and practice ..................................... 7 1. Respect and protection of the human rights of all affected by the criminal process .................................................................................................... 7 2. Investigating and appropriately charging serious violations and crimes under international law ................................................................................ 8 a) States must carry out prompt, thorough, independent investigations of serious acts of violence, by non-State and State actors, and hold to account those responsible ............................................................................................ 8 b) Offences should be appropriately charged, to ensure accountability for serious international crimes .............................................................................. 8 c) Criminal prosecutions on terrorism charges should be used sparingly for .................................................... 9 3. National judiciaries, trial and judicial scrutiny of counter-terrorism measures ................ 9 4. Rights of victims ..................................................................................................10 ..............................11 6. Human rights principles implicated by Directive Offences ...........................................13 6.1 Principle of Legality ...................................................................................... 13 6.2. Restriction on Freedom of Movement, Expression, Association, Assembly, Privacy, Private and Family Life, Right to political participation: Legitimate Aim, Necessity and Proportionality ................................................. 16 6.3 Non-discrimination ....................................................................................... 17 III. Offences under the Directive .................................................................................. 19 1. Terrorist Offences .................................................................................................19 Guidance ........................................................................................................... 19 Commentary ...................................................................................................... 20 2. Directing and participation in a terrorist group .........................................................21 Guidance ........................................................................................................... 22 Commentary ...................................................................................................... 22 3. Public provocation to commit a terrorist offence .......................................................24 Guidance ........................................................................................................... 24 Commentary ...................................................................................................... 24 4. Recruitment for terrorism ......................................................................................27 Guidance ........................................................................................................... 27 Commentary ...................................................................................................... 27 5. Providing and receiving training for terrorism ...........................................................28 Guidance ........................................................................................................... 28 Commentary ...................................................................................................... 29 6. Travelling for the purpose of terrorism ....................................................................30 Guidance ........................................................................................................... 30 Commentary ...................................................................................................... 31 7. Organising or otherwise facilitating travelling for the purpose of terrorism ...................33 Guidance ........................................................................................................... 33 Commentary ...................................................................................................... 33 ................................................................................................34 Guidance ........................................................................................................... 34 Commentary ...................................................................................................... 34 9. Aiding, abetting, inciting and attempting .................................................................35 Guidance ........................................................................................................... 35 IV. The rights of suspects in the criminal process: investigation, prosecution and trial .............................................................................................. 36 1. Investigation, and evidence gathering .....................................................................36 2. Detention in counter-terrorism cases ......................................................................39 3. Fair trial before an independent and impartial court ..................................................41 4. Sentencing ..........................................................................................................43 5. Children in the Criminal Process .............................................................................44 6. Judicial cooperation ..............................................................................................46 Counter-terrorism and human rights in the courts: guidance for judges, prosecutors and | 5 lawyers on of EU Directive 2017/541 on combatting terrorism I. Introduction On 15 March 2017 the European Union (EU) adopted EU Directive 2017/541 on Combatting Terrorism (“the Directive”) with a deadline for transposition into domestic law of September 2018. The Directive aims principally to extend the scope of the application of the criminal law by Member States to terrorism related threats and activity within the EU. In so doing it covers an expansive range of terrorist offences, some previously recognized in international and (most) domestic legal frameworks, and others more innovative. These include crimes related to terrorist as well as ‘related’ offences of ‘public provocation’ of terrorism (recital 10/Article 5), ‘receipt’ of training (article 8), ‘travel for the purpose of terrorism’ (Article 9); aiding and abetting, inciting, attempting or facilitating these offences (Articles 10, 14). The words “terrorist” and “terrorism” here are used only to refer to and replicate their use in the Directive and other laws referred to. They are not necessarily used in a legal sense, terrorism has been proposed by the UN Special Rapporteur on Counter-terrorism and Hu- man Rights Martin Scheinin, in his 2010 report, UN Doc A/HRC/16/51: “Terrorism means an action or attempted action where: (1) The action: (a) Constituted the intentional taking of hostages; or (b) Is intended to cause death or serious bodily injury to one or more members of the general population or segments of it; or (c) Involved lethal or serious physical violence against one or more members of the general population or segments of it; and (2) The action is done or attempted with the intention of: (a) Provoking a state of terror in the general public or a segment of it; or (b) Compelling a Government or international organization to do or abstain from doing something; and enacted for the purpose of complying with international conventions and protocols relating to terrorism or with resolutions of the Security Council relating to terror- The Directive has been criticised for the hasty process of its adoption, its scope and human rights national legislatures, and in turn for prosecutors and investigative judges and the judiciary - in ensuring implementation consistently with human rights and the rule of law. The obligation to ensure implementation consistently with States’ other obligations under inter- national human rights and humanitarian law is enshrined explicitly in the Directive: “this directive has to be implemented in accordance with those rights and principles taking also into account the European Convention for the Protection of Human Rights and Fundamental Freedoms, the International Covenant