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The United Nations Human Rights Council (UNHRC)
The United Nations Human Rights Council (UNHRC) was created in 2006 by General Assembly resolution 60/251.[1] This action followed a campaign by various interests to do away with the Commission on Human Rights despite the Commission's constitutionally mandated existence under Charter Article 68.[2] Even though the Assembly in Article 13 of the resolution recommended that the Economic and Social Council "abolish the Commission on 16 June 2006"[3] the Assembly's action in then setting up its own human rights mechanism as a subsidiary body to itself was dubious legally, since Charter Article 68 ordered ECOSOC to set up a commission "for the promotion of human rights."[4]
While calling for the Commission's abolition, the Assembly complimented it by: "Recognizing the work undertaken by the Commission on Human Rights and the need to preserve and build on its achievements and to redress its shortcomings,"[5] the Assembly also directed the Council to "assume, review and, where necessary, improve and rationalize all mandates, mechanisms, functions and responsibilities of the Commission on Human Rights in order to maintain a system of special procedures, expert advice and a complaint procedure."[6]
The UN's time-honored system of regional groups was once again installed by the Assembly when it ordained that the Council's 47 members consist of 13 from the Group of African States, 13 from the Group of Asian States, 6 from the Group of Eastern European States, 8 from the Group of Latin American and Caribbean State, and 7 for the Group of Western European and other States. Election is by a majority of Assembly members, while 2/3 of the Assembly members present and voting may suspend a Council member "that commits gross and systematic violations of human rights."[7]
Recent Developments: Universal Periodic Review
The Assembly resolution requires the Council inter alia to "Undertake a universal periodic review . . . of the fulfillment by each State of its human rights obligations and commitments . . . ."[8] The UPR's functions were spelled out in Council resolution 5/1 of June 2007, paragraph 14 of which states that: "The periodicity of the review for the first cycle will be of four years. This will imply the consideration of 48 States per year during three sessions of the working group of two weeks each."[9] A review is to be conducted in a working group chaired by the Council President and composed of the 47 members. Paragraph 22 requires that, "The duration of the review will be three hours for each country in the working group" while paragraph 23 says that, "Half an hour will be allocated for the adoption of the report of each country under review in the working group."[10]
Documentation for a review, per paragraph 15, is to consist of (1) a national report not to exceed 20 pages with input "through a broad consultation process at the national level with all relevant stakeholders"[11] ; (2) a compilation not to exceed 10 pages prepared by the Office of the High Commissioner for Human Rights (OHCHR), and (3) an OHCHR summary of not more than 10 pages of "additional, credible and reliable information provided by other relevant stakeholders".[12] An outcome document is then to be adopted by the Council. The United States is scheduled for review in 2010.
The US has chosen not to run for a seat in the Council at any of the three elections to date, possibly influenced by Sweden's having once beaten it for a seat on the Commission when members were elected by ECOSOC. But US participation in the UPR is assured by paragraph 18 (b) of the resolution, under which "Observer States may participate in the review, including in the interactive dialogue".[13] Rule 7(a) of the rules of procedure also provides for participation by countries that are not members of the Council. However the effect of the recent US statement that it will not function at the Council even as an Observer casts doubt on its participation.
Examples from the first two sessions of the UPR working group give at least an anecdotal impression of how effective the process is. The Netherlands was re-viewed on April 15, 2008, during the group's first session and
[I]t noted that the major human rights issues in every State under review had been raised in a constructive manner, showing that the intention of the General Assembly that the universal periodic review should be a cooperative mechanism based on interactive dialogue could actually work. Secondly, the Netherlands was pleased to see so many Member States actively participating in the process. Thirdly, it experienced an increasing openness and transparency as the sessions evolve. For the moment, the Netherlands considered the review a 'work in progress' that would ultimately contribute to the improvement of the human rights situation in all countries.[14]
The Netherland rebuffed a challenge to its non-use of capital punishment by declining to:
2) Initiate a debate on the death penalty, with a view to reaching responsive conclusions consistent with international human rights law (Egypt).
[It explained]
The Kingdom of the Netherlands firmly opposes the death penalty everywhere. Capital punishment was abolished in the Netherlands in 1870. This principle is enshrined in the Constitution and applies even in wartime. The Kingdom of the Netherlands pursues the worldwide abolition of the death penalty partly through its bilateral foreign policy and more importantly through close cooperation with its EU partners. The Kingdom of the Netherlands therefore cannot support this recommendation.[15]
The Minister of Justice and Human Rights of Tunisia, the first African country to be reviewed, "highlighted the de facto abolition of capital punishment. He further noted that there has been no death penalty sentence since 1999 and underlined the Head of State's commitment to continue on this path."[16] "Japan said that the image the delegation had of Tunisia was a country of civilization . . . Tunisia is one of the most democratic societies, which shows a great respect for human rights, in the Arab world. Japan also noted the very high status of women."[17] "Concerning the cooperation with the ICRC, the Minister stressed that this is extremely helpful and underlined its assistance for the improvement of prison conditions. It was in this spirit that Tunisia initiated contacts with Human Rights Watch, allowing it to visit Tunisian prisons."[18]
[T]he United States underscored the importance of civil society in the UPR process and appreciated Tunisia's statement of its engagement with civil society in preparing the national report. On the issue of NGOs and unions, the United States noted that there have been reports that the registration of some NGOs were refused by the Government and asked what the applicable registration requirements and controls were for NGOs operating in Tunisia. . . .[19]
Furthermore, "Malaysia noted that Tunisia has adopted as early as 1956 a Personal Status Code, which UNDP described as a model for promoting the principle of equality in marital relations. Malaysia also noted that Tunisia has ratified nearly all the international human rights instruments. . . ."[20]
Poland also had a positive reaction to UPR, stating that it "perceives the recommendations made in the course of the UPR process as an immense added value for further improvement of the human rights situations on the ground. Many of them reflect the challenges that Poland has already identified and is in the process of addressing."[21]
Poland received 56 conclusions and/or recommendations from the working group. The 25th was: "While noting the efforts to strengthen the judiciary, encouraged Poland to make legal amendments that will make it possible to effectively prosecute offences related to torture and other cruel, inhuman or degrading treatments" the author being Mexico.[22]
Poland's response was:
The use of methods banned under the Convention Against Torture and Other Cruel, Inhuman or Degrading Treatment or Punishment is not permitted in Poland. The Polish Penal Code envisages the penalty of between one and ten years imprisonment for the use of force, illegal threats or other form of physical or mental cruelty by a public official or person acting in his/her name in order to obtain specific testimony, explanations, information or statements. Furthermore, the Penal Code penalizes physical or mental cruelty against a person legally deprived of liberty, with punishment also envisaged for public officials who allow the commitment of such acts in dereliction of their duty. Any other abuse of force by public officials during the fulfillment of their duties, or in dereliction of duty, reported by the injured party or otherwise disclosed, is investigated in each instance through preparatory proceedings, being treated as autonomous crimes of abuse of authority or dereliction of duty, or cumulatively with other applicable offenses. Furthermore, it should be pointed out that Poland is a party to various international treaties dealing with prosecution of torture. The definitions of torture contained in these conventions constitute part of the Polish legal order and are applied directly by Polish courts.[23]
The UK:
[N]oted that India has not ratified the Convention against Torture . . . or its Optional Protocol. It recommended that India ratify both instruments at the earliest opportunity. The United Kingdom asked for additional information on (a) reports of attacks against persons from religious or other minorities, in particular in Orissa State; (b) steps to implement treaty body recommendations on the Armed Forces Special Powers Act; (c) anti-conversion legislation; and (c) [stet] the communal violence crimes bill. It welcomed the involvement of civil society in the national preparatory process for the UPR session and recommended that they be fully involved in the follow-up to UPR.[24]
In response
India noted that Canada, as well as others, referred to the impunity for human rights violations under the Armed Forces Act which was incorrect. India stated that no forces, armed or police, function with impunity. Armed forces were under strict orders not to transgress human rights and the strictest action is taken, and incidents are swiftly adjudicated, including through courts-martial.[25]
Regarding castes and racial discrimination, India noted that both Canada and Germany mentioned India's position on the scope of the International Convention on the Elimination of All Forms of Racial Discrimination (ICERD). India stated that their position on ICERD is unchanged and that while they recognize that caste-based discrimination exists in India, since the caste system, which is unique to India, is not racial in origin, caste based discrimination cannot be considered a form of racial discrimination.[26]
****
UPR can be judged in terms of what it is supposed to replace in the former Commission, i.e., country-specific resolutions generally critical and often alleged to be politically motivated. The randomly selected examples quoted above do not support systematic findings on whether the Commission's ways have been significantly improved upon. But the following impressions seem to be grounded in these quotations.
- Certain countries make a point of lauding the UPR system, new though it is. The Netherlands and Poland are notable in this respect.
- Certain countries praise the one under scrutiny. Japan's calling Tunisia "one of the most democratic societies . . . in the Arab world [with a] very high status of women" is an example, as is Malaysia's calling attention to Tunisia's ratification of "nearly all the international human rights instruments."
- Criticism is also heard, as in the US's noting "reports that the registration of some NGOs were refused by the Government" of Tunisia and in the UK's calling attention to India's not having ratified the Convention against Torture or its Optional Protocol.
- Defenses are plainly expressed, as the Netherlands did for its stance against the death penalty and Poland did as to torture. India was equally firm in its rejection of references to impunity under its Armed Forces Act.
- Countries that are seen as overly critical of others may receive some of the same back when their turn comes, while those that praise may earn themselves a degree of tolerance.
John Carey
Editor, United Nations Law Reports
TV Producer, United Nations Week: News and Views
1 December 2008
Footnotes:
1
G.A. Res. 60/251, U.N. GAOR. 60th Sess., Agenda items 46 and 120, U.N. Doc. A/Res/60/251 (Apr. 3, 2006) available at http://www2.ohchr.org/english/bodies/hrcouncil/docs/A.RES.60.251_En.pdf.
2
U.N. Charter art. 68 avilable at http://israelipalestinian.procon.org/sourcefiles/ispaldoc1945.pdf.
3
G.A. Res. 60/251, supra note 1, art. 13.
4
U.N. Charter, supra note 2
5
G.A. Res 60/251, supra note 1, at 2.
6
G.A. Res 60/251, supra note 1, ¶ 6
7
G.A. Res 60/251, supra note 1, ¶ 8.
8
G.A. Res 60/251, supra note 1, ¶ 5 (e).
9
U.N. Human Rights Council, Insitution-Building of the United Nations Human Rights Council, ¶.14, U.N. Doc. A/C.3/62/L.32 (Nov. 5, 2007), available at http://unbisnet.un.org:8080/ipac20/ipac.jsp?session=1225053224RV9.178936
&profile=bibga&uri=full%3D3100001~!845511~!3&booklistformat=#focus.
10
Id.¶ 22, 23.
11
U.N. Human Rights Council, supra note 9, ¶ 15 (a).
12
U.N. Human Rights Council, supra note 9, ¶ 15 (c).
13
U.N. Human Rights Council, supra note 9, ¶ 18 (b)
14
U.N. Human Rights Council, Working Group on the Universal Periodic Review, Netherlands Addendum, Views on conclusions and /or recommendations, voluntary commitments and replies presented by the State under review, ¶ 8, U.N. Doc. A/HRC/8/31/Add.1 (June 16, 2008) available at http://www.unhcr.org/cgi-bin/texis/vtx/refworld
/rwmain/opendocpdf.pdf?reldoc=y&docid=487dedb92.
15
U.N. Human Rights Council, Working Group on the Universal Periodic Review, Response of the Kingdom of the Netherlands to the recommendations it received during the universal periodic review on April 15, 2008, ¶ 2, U.N. Doc. A/HRC/8/31/Add.1 (Aug. 13, 2008) available at http://lib.ohchr.org/HRBodies/UPR/Documents/
Session1/NL/A_HRC_8_31_Add1_Netherlands.pdf.
16
U.N. Human Rights Council, Working Group on the Universal Periodic Review, Tunisia, ¶ 8, U.N. Doc. A/HRC/8/21 (May 22, 2008) available at http://www2.ohchr.org/english/bodies/hrcouncil/8session/reports.htm.
17
Id.¶ 27.
18
Id. ¶ 34.
19
Id. ¶ 47.
20
Id. ¶ 60.
21
U.N. Human Rights Council, Working Group on the Universal Periodic Review, Poland Addendum, Views on conclusions and/or recommendations, voluntary commitments and replies presented by the State under review ¶ 16, U.N. Doc. A/HRC/8/30/Add.1 (June 16, 2008) available at http://www.unhcr.org/cgi-bin/texis/vtx/refworld/
rwmain/opendocpdf.pdf?reldoc=y&docid=487ddc052.
22
U.N. Human Rights Council, Working Group on the Universal Periodic Review, Poland, ¶ 54.25, U.N. Doc. A/HRC/8/30 (May 23, 2008) available at http://lib.ohchr.org/HRBodies/UPR/Documents/
Session1/PL/A_HRC_8_30_Poland_E.pdf.
23
U.N. Human Rights Council, Working Group on the Universal Periodic Review, Poland Addendum, Responses of Poland to Recommendations, 6, U.N. Doc. A/HRC/8/30/Add.2, (June 11, 2008) available at http://ap.ohchr.org/documents/alldocs.aspx?doc_id=14260.
24
U.N. Human Rights Council, Working Group on the Universal Periodic Review, India, ¶ 25 U.N. Doc. A/HRC/8/26, (May 23, 2008), available at http://lib.ohchr.org/HRBodies/UPR/Documents/Session1/IN/A_HRC_8_26_India_E.pdf
25
Id. ¶ 73.
26
Id. ¶ 74.
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