التزامات البعد الإنساني لمنظمة الأمن والتعاون في أوروبا :المجلد الأول

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© OSCE/ODIHR 2008 ᫪«∏©J ¢VGôZC’ É¡î°ùfh ájôëH ÜÉàµdG Gòg äÉjƒàëe ΩGóîà°SG øµªj .áXƒØëe ¥ƒ≤ëdG ™«ªL øeC’G ᪶æe ƒg Qó°üªdG ¿CÉH ±GôàYG ™e ∂dP ≥aGôàj ¿CG •ô°T ,ájQÉéJ ô«Z iôNCG ¢VGôZCGh .¿É°ùfE’G ¥ƒ≤Mh á«WGôbƒªjódG äÉ°ù°SDƒªdG Öàµe/ÉHhQhCG »a ¿hÉ©àdGh ISBN 978-83-60190-51-7

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21 ÉHhQhCG »a ¿hÉ©àdGh øeC’G ᪶æªd »fÉ°ùfE’G ó©ÑdG äÉeGõàdG »Yƒ°Vƒe ∞«æ°üJ :∫h’G ó∏éªdG

áq«eÉàN äɶMÓe .º«L óYGƒ≤dG øe á∏eÉc áYƒªée ÉHhQhCG »a ¿hÉ©àdGh øeC’G ᪶æe »a ácQÉ°ûªdG ∫hódG äóLhCG øe IhôK ᪶æªdG ≥FÉKh πqµ°ûJh .ÜÉéYE’G ô«ãJ »fÉ°ùfE’G ó©ÑdG äÉeGõàdG ∫Éée »a ÇOÉѪdGh º¡°ùJ ¿CG πeCÉfh .∫ÉéªdG Gòg »a kÉYóÑeh kGóFGQ É¡æe â∏©L »àdGh áqª¡ªdG ¿É°ùfE’G ¥ƒ≤M äÉeGõàdG ,¿É«MC’G Ö∏ZCG »a kGóL á∏°q üتdG äÉeGõàd’G øe ójó©dÉH ôãcCG áaô©ªdG èjhôJ »a áYƒÑ£ªdG √òg ,áq«°SÉ°SC’G äÉqjôëdGh ,¿É°ùfE’G ¥ƒ≤M IôFGO »a ᪶æªdG »a ácQÉ°ûªdG ∫hódG É¡«∏Y â≤aGh »àdGh .kÉ°†jCG Égò«ØæJ »ah ,áq«WGôbƒªjódGh ,¿ƒfÉ≤dG ºµMh

22  »Yƒ°Vƒe ∞«æ°üJ :∫h’G ó∏éªdG ÉHhQhCG »a ¿hÉ©àdGh øeC’G ᪶æªd »fÉ°ùfE’G ó©ÑdG äÉeGõàdG

ÉHhQhCG »a ¿hÉ©àdGh øeC’G ᪶æe ≥FÉKh áYƒªéªdG √òg »a É¡«dEG QÉ°ûªdG

»àdGh) 1975 ¢ù£°ùZCG/ÜBG 1 ,»µæ°ù∏g ,ÉHhQhCG »a ¿hÉ©àdGh øeC’G ôªJDƒªd »eÉàîdG ¿É«ÑdG .(1975 »µæ°ù∏g É¡fCG ≈∏Y kGóYÉ°üa ¿B’G øe É¡«dEG QÉ°û«°S

QÉ°û«°S »àdGh) 1983 ôѪàÑ°S/∫ƒ∏jCG 6 ,ójQóe ,»fÉãdG á©HÉàªdG ´ÉªàLG - áq«eÉàîdG ójQóe á≤«Kh .(1983 ójQóe É¡fCG ≈∏Y kGóYÉ°üa ¿B’G øe É¡«dEG

»àdGh) 1989 ôjÉæj/»fÉãdG ¿ƒfÉc 15 ,Éæ««a ,ådÉãdG á©HÉàªdG ´ÉªàLG - áq«eÉàîdG Éæ««a á≤«Kh .(1989 Éæ««a É¡fCG ≈∏Y kGóYÉ°üa ¿B’G øe É¡«dEG QÉ°û«°S

,»fÉ°ùfE’G ó©ÑdÉH »˘æ˘©˘ª˘dGh ɢHhQhCG »˘a ¿hɢ©˘à˘dGh ø˘eC’G ô˘ª˘JDƒ˘ª˘d ø˘Lɢ¡˘æ˘Hƒ˘c ´É˘ª˘à˘LG á˘≤˘«˘Kh ɢ¡``fCG ≈``∏˘˘Y kGó˘˘YÉ``°üa ¿B’G ø˘˘e ɢ˘¡˘ «˘ dEG QÉ``°û«``°S »˘˘à˘ dGh) 1990 ƒ«fƒj/¿Gô˘jõ˘M 29 ,øLÉ¡``æ˘Hƒ˘c .(1990 øLÉ¡æHƒc

IOQGƒdG OƒæÑdG ¢†©Ñd PÉØædG áØ°U AÉ£YE’ áq«aÉ°VEG á≤«Kh/IójóL ÉHhQhCG πLCG øe ¢ùjQÉH ¥Éã«e QÉ°û«°S »àdGh) 1990 ôѪaƒf/»fÉãdG øjô°ûJ 21 ,¢ùjQÉH ,IójóL ÉHhQhCG πLCG øe ¢ùjQÉH ¥Éã«e »a .(1990 ¢ùjQÉH É¡fCG ≈∏Y kGóYÉ°üa ¿B’G øe É¡«dEG

»a ¿hÉ©àdGh øeC’G ôªJDƒe »a ácQÉ°ûªdG ∫hó∏d »aÉ≤ãdG çGôàdG ∫ƒM ±ƒcGôc Ihóf á≤«Kh ɢ¡˘fCG ≈˘∏˘Y kGó˘Yɢ°üa ¿B’G ø˘e ɢ¡˘ «˘ dEG Qɢ˘°û«˘˘°S »˘˘à˘ dGh) 1991 ƒ«fƒj/¿Gô˘jõ˘M 6 ,±ƒ˘cGô˘˘c ,ɢ˘HhQhCG .(1991 ±ƒcGôc

19 ,∞«æL ,áq«eƒ≤dG äÉq«∏bC’G ¿CÉ°ûH ÉHhQhCG »a ¿hÉ©àdGh øeC’G ôªJDƒe AGôÑN ´ÉªàLG ôjô≤J .(1991 ∞«æL ¬fCG ≈∏Y kGóYÉ°üa ¿B’G øe ¬«dEG QÉ°û«°S …òdGh) 1991 ƒ«dƒj/RƒªJ

,ÉHhQhCG »a ¿hÉ©àdGh øeC’G ôªJDƒªd »fÉ°ùfE’G ó©ÑdÉH »æ©ªdG ôªJDƒª∏d ƒµ°Sƒe ´ÉªàLG á≤«Kh ɢ¡˘ fCG ≈˘˘∏˘ Y kGó˘˘Yɢ˘°üa ¿B’G ø˘˘e ɢ˘¡˘ «˘ dEG Qɢ˘°û«˘˘°S »˘˘à˘ dGh) 1991 ô˘Hƒ˘à˘cCG/∫hC’G ø˘˘jô˘˘°ûJ 3 ,ƒ˘µ˘°Sƒ˘e .(1991 ƒµ°Sƒe

¿ƒfÉc 31 - 30 ,ÆGôH ,ÉHhQhCG »a ¿hÉ©àdGh øeC’G ôªJDƒe ¢ù∏éªd »fÉãdG ´ÉªàL’G á≤«Kh .(1992 ÆGôH É¡fCG ≈∏Y kGóYÉ°üa ¿B’G øe É¡«dEG QÉ°û«°S »àdGh) 1992 ôjÉæj/»fÉãdG

»àdGh) 1992 ƒ«dƒj/RƒªJ 10 ,»µæ°ù∏g ,™HGôdG á©HÉàªdG ´ÉªàLG - áq«eÉàîdG »µæ°ù∏g á≤«Kh .(1992 »µæ°ù∏g É¡fCG ≈∏Y kGóYÉ°üa ¿B’G øe É¡«dEG QÉ°û«°S

23 ÉHhQhCG »a ¿hÉ©àdGh øeC’G ᪶æªd »fÉ°ùfE’G ó©ÑdG äÉeGõàdG »Yƒ°Vƒe ∞«æ°üJ :∫h’G ó∏éªdG

¿ƒfÉc 15 - 14 ,ºdƒ¡cƒà°S ,ÉHhQhCG »a ¿hÉ©àdGh øeC’G ôªJDƒe ¢ù∏éªd ådÉãdG ´ÉªàL’G á≤«Kh .(1992 ºdƒ¡cƒà°S É¡fCG ≈∏Y kGóYÉ°üa ¿B’G øe É¡«dEG QÉ°û«°S »àdGh) 1992 ôѪ°ùjO/∫hC’G

øjô°ûJ 30 ,ɢehQ ,ɢHhQhCG »˘a ¿hɢ©˘à˘dGh ø˘eC’G ô˘ª˘ JDƒ˘ e ¢ù∏˘˘é˘ ª˘ d ™˘˘HGô˘˘dG ´É˘˘ª˘ à˘ L’G ᢢ≤˘ «˘ Kh É¡fCG ≈∏Y kGóYÉ°üa ¿B’G øe É¡«dEG QÉ°û«°S »àdGh) 1993 ôѪ°ùjO/∫hC’G ¿ƒfÉc 1 - ôѪaƒf/»fÉãdG .(1993 ÉehQ

øe É¡«dEG QÉ°û«°S »àdGh) 1994 ôѪ°ùjO/∫hC’G ¿ƒfÉc 6 ,â°ùHGOƒH ,áq«eÉàîdG â°ùHGOƒH á≤«Kh .(1994 â°ùHGOƒH É¡fCG ≈∏Y kGóYÉ°üa ¿B’G

kGóYÉ°üa ¿B’G øe É¡«dEG QÉ°û«°S »àdGh) 1996 ôѪ°ùjO/∫hC’G ¿ƒfÉc 3 ,áfƒÑ°ûd ,áfƒÑ°ûd á≤«Kh .(1996 áfƒÑ°ûd É¡fCG ≈∏Y

1997 ôѪ°ùjO/∫hC’G ¿ƒfÉc 19 - 18 ,øLÉ¡æHƒc ,…QGRƒdG ¢ù∏éª∏d ¢SOÉ°ùdG ´ÉªàL’G á≤«Kh .(1997 øLÉ¡æHƒc É¡fCG ≈∏Y kGóYÉ°üa ¿B’G øe É¡«dEG QÉ°û«°S »àdGh)

»àdGh) 1998 ôѪ°ùjO/∫hC’G ¿ƒfÉc 3 - 2 ,ƒ∏°ShCG ,…QGRƒdG ¢ù∏éª∏d ™HÉ°ùdG ´ÉªàL’G á≤«Kh .(1998 ƒ∏°ShCG É¡fCG ≈∏Y kGóYÉ°üa ¿B’G øe É¡«dEG QÉ°û«°S

¿B’G øe É¡«dEG QÉ°û«°S »àdGh) 1999 ôѪaƒf/»fÉãdG øjô°ûJ 19 ,∫ƒÑ棰SG ,∫ƒÑ棰SG á≤«Kh .(1999 ∫ƒÑ棰SG É¡fCG ≈∏Y kGóYÉ°üa

»àdGh) 2000ôѪaƒf/»fÉãdG øjô°ûJ 28 - 27 ,Éæ««a ,…QGRƒdG ¢ù∏éª∏d øeÉãdG ´ÉªàL’G á≤«Kh .(2000 Éæ««a É¡fCG ≈∏Y kGóYÉ°üa ¿B’G øe É¡«dEG QÉ°û«°S

2001 ôѪ°ùjO/∫hC’G ¿ƒfÉc 4 - 3 ,â°SQÉNƒH ,…QGRƒdG ¢ù∏éª∏d ™°SÉàdG ´ÉªàL’G á≤«Kh .(2001 â°SQÉNƒH É¡fCG ≈∏Y kGóYÉ°üa ¿B’G øe É¡«dEG QÉ°û«°S »àdGh) »àdGh( 2002 ôѪ°ùjO/∫hC’G ¿ƒfÉc 7 - 6 ,ƒJQƒH ,…QGRƒdG ¢ù∏éª∏d ô°TÉ©dG ´ÉªàL’G á≤«Kh .(2002 ƒJQƒH É¡fCG ≈∏Y kGóYÉ°üa ¿B’G øe É¡«dEG QÉ°û«°S

ôѪ°ùjO/∫hC’G ¿ƒfÉc 2 - 1 ,âîjôà°SÉe ,…QGRƒdG ¢ù∏éª∏d ô°ûY …OÉëdG ´ÉªàL’G á≤«Kh .(2003 âîjôà°SÉe É¡fCG ≈∏Y kGóYÉ°üa ¿B’G øe É¡«dEG QÉ°û«°S »àdGh) 2003

2004 ôѪ°ùjO/∫hC’G ¿ƒfÉc 7 - 6 ,É«aƒ°U ,…QGRƒdG ¢ù∏éª∏d ô°ûY »fÉãdG ´ÉªàL’G á≤«Kh .(2004 É«aƒ°U É¡fCG ≈∏Y kGóYÉ°üa ¿B’G øe É¡«dEG QÉ°û«°S »àdGh)

24  :’hCG »fÉ°ùfE’G ó©ÑdÉH ≥q∏©àJ áeÉY ΩɵMCG  »Yƒ°Vƒe ∞«æ°üJ :∫h’G ó∏éªdG ÉHhQhCG »a ¿hÉ©àdGh øeC’G ᪶æªd »fÉ°ùfE’G ó©ÑdG äÉeGõàdG

»``fÉ°ùfE’G ó©Ñ∏d áeóq ≤e 1.

¬à«ªgCGh »fÉ°ùfE’G ó©ÑdG á©«ÑW 1.1 äÉbÓ©∏d áªcÉëdG ÇOÉѪdG ¿ÓYEG (CG) .1 :ÉHhQhCG »a øeC’ÉH á≤∏©àªdG πFÉ°ùªdG) 1975 »µæ°ù∏g .( 9 - 7 ÇOÉÑe ;AÉ°†YC’G ∫hódG ø«H ôµ˘Ø˘dG á˘jô˘M π˘ª˘°ûJh ,᢫˘°Sɢ°SC’G äɢjô˘ë˘dGh ¿É˘°ùfE’G ¥ƒ˘≤˘M ΩGô˘à˘MɢH á˘cQɢ°ûª˘dG ∫hó˘dG Ωõ˘à˘∏˘J .øjódG hCG á¨∏dG hCG ¢ùæédG hCG ¥ô©dG ÖÑ°ùH õ««ªJ ¿hO ,™«ªé∏d ,ó≤੪dGh øjódGh ô«ª°†dGh (...) ∫OÉÑàªdG ºgÉØàdG ºYO ≈dEG ,ájhÉ°ùàe ±GôWCÉc É¡æ«H ¿hÉ©àdG AɪfEG ∫ÓN øe ,≈©°ùJ ¿CG É¡«∏Yh ɪc .»dhódG ∫ó©dGh øeC’Gh º∏°ùdGh ,É¡æ«H ɪ«a QGƒédG ø°ùM äÉbÓYh ájOƒdG äÉbÓ©dGh ,á≤ãdGh øe É¡dÉeBG ≥«≤ëJ »a áªgÉ°ùªdGh ܃©°ûdG AÉNQ ∑GQOEG ≈dEG ,¿hÉ©àdG AɪfEG ∫ÓN øe kÉ°†jCG ≈©°ùJ »àdG äGRÉéfE’Gh Ωó≤àdG ∂dòch ,ádOÉÑàªdG áaô©ªdG IOÉjR É¡æY ôªãJ »àdG óFGƒØdG ,Ée øª°V øe ,∫ÓN ɪc .á«fÉ°ùfE’Gh á«aÉ≤ãdGh ,á«YɪàL’Gh ,á«LƒdƒæµàdGh ,᫪∏©dGh ,ájOÉ°üàb’G ä’ÉéªdG »a ºàJ òNCÉà°Sh ,™«ªé∏d óFGƒØdG √òg áMÉJE’ á«JGƒªdG ±hô¶dG ºYO ≈dEG ±ó¡J äGƒ£N PÉîJG ≈∏Y πª©à°S ¬Lh ≈∏Yh ,ájOÉ°üàb’G ᫪æàdG äÉjƒà°ùe ø«H ¥QÉØdG ≥««°†J »a ™«ªédG áë∏°üe QÉÑàY’G ø«©H .ºdÉ©dG AÉëfCG ≈à°T øe á«eÉædG ∫hódG áë∏°üe ¢Uƒ°üîdG (áLÉÑjO) 1990 øLÉ¡æHƒc á«°SÉ°SC’G äÉjôëdGh ¿É°ùfE’G ¥ƒ≤ëd πeɵdG ΩGôàM’G ¿CÉH É¡YÉæàbG øY ácQÉ°ûªdG ∫hódG Üô©J ≥«≤ëàd ¿É«°SÉ°SCG ¿ÉWô°T ɪg ¿ƒfÉ≤dG IOÉ«°Sh ájOó©àdG á«WGô≤ªjO ≈∏Y Ωƒ≤J äÉ©ªàée ᫪æJh .ÉHhQhCG »a É¡àeÉbEG ≈dEG ≈©°ùJ »àdG ¿hÉ©àdGh ádGó©dGh øeC’Gh ΩÓ°ù∏d ºFGódG ΩɶædG áeÉbEG »a Ωó≤àdG k’hCG »g á«°SÉ°SC’G äÉjôëdGh ¿É°ùfE’G ¥ƒ≤M õjõ©Jh ájɪM ¿CÉH É¡YÉæàbG øY ácQÉ°ûªdG ∫hódG Üô©J πµ°ûj äÉjôëdGh ¥ƒ≤ëdG √ò¡H ±GôàY’G ¿CG ≈∏Y ó«cCÉàdG ó«©Jh (1) ,áeƒµë∏d á«°SÉ°SC’G ó°UÉ≤ªdG óMCG .ΩÓ°ùdGh ∫ó©dGh ájôëdG ¢SÉ°SCG (...) kÉ°ùeÉN ¬à«ªgCG ≈∏Y ó«cCÉàdGh ôªJDƒªdG »a »fÉ°ùfE’G ó©ÑdG √ÉéJ É¡eGõàdG ójóL øe ácQÉ°ûªdG ∫hódG ócDƒJ (...) ÉHhQhCG »a ¿hÉ©àdGh øeC’G √ÉéJ ¿RGƒàe (41) è¡f øe CGõéàj ’ kGAõL √QÉÑàYÉH .(IóMƒdGh ΩÓ°ùdGh á«WGô≤ªjódG øe IójóL áÑ≤M) 1990 ¢ùjQÉH (...) ¬«a á©LQ ’ á«°SÉ°SC’G äÉjôëdGh ¿É°ùfE’G ¥ƒ≤ëd ÉæeGôàMG ¿CG ø∏©f øëf .(áª≤dG ¿ÓYEG) 1992 »µæ°ù∏g

27 ÉHhQhCG »a ¿hÉ©àdGh øeC’G ᪶æªd »fÉ°ùfE’G ó©ÑdG äÉeGõàdG »Yƒ°Vƒe ∞«æ°üJ :∫h’G ó∏éªdG

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110  »Yƒ°Vƒe ∞«æ°üJ :∫h’G ó∏éªdG ÉHhQhCG »a ¿hÉ©àdGh øeC’G ᪶æªd »fÉ°ùfE’G ó©ÑdG äÉeGõàdG

1990 øLÉ``¡æHƒc »a âÑdG øµªj ≈àM ,≥ëdG á«FÉæL ᪡àH RÉéàM’G hCG ∫É≤àYÓd ¢Vô©àj ¢üî°T …C’ - (15.5) ø«dƒîe øjôNBG ø«ØXƒe ΩÉeCG hCG IÉ°†≤dG óMCG ΩÉeCG kÉ©jô°S ∫ƒãªdG »a ,√RÉéàMG hCG ¬dÉ≤àYG á«Yhô°ûe ;áØ«XƒdG √òg á°SQɪªH kÉ«fƒfÉb (...) 1991 ƒ```µ°Sƒe ¿CG ¿Éª°V ácQÉ°ûªdG ∫hódG ≈∏Y (1.23) ;¿ƒfÉ≤dG »a É¡«∏Y ¢Uƒ°üæªdG äGAGôLEÓd kÉ≤ahh ÜÉÑ°SC’ ’EG ¬àjôM øe Ωôëj ød kGóMCG (CG) ºà«°Sh ,É¡ª¡Øj á¨∏Hh kÉ©jô°S ¬dÉ≤àYG ÖÑ°ùH ¬eÓYEG ºàj ±ƒ°S ¬«∏Y ¢†Ñ≤dG ≈≤∏j ¢üî°T …CG (Ü) ;¬«dEG á¡Lƒe º¡J ájCÉH ¬ZÓHEG ;»∏ëªdG ¿ƒfÉ≤dG ΩɵMC’ kÉ≤ah ¬bƒ≤ëH kÉ©jô°S ¬ZÓHEG ºà«°S ¬àjôM øe ΩôM o ób ¿Éc ¢üî°T …CG (`L) hCG m ¢VÉb ΩÉeCG kGQƒa ∫ƒãªdG »a ≥ëdG ¬d ¿ƒµ«°S RÉéàM’G hCG ∫É≤àYÓd ¢Vô©J ¢üî°T …CG (O) ¬MGô°S ¥ÓWEG ºà«°Sh ,√RÉéàMG hCG ¬dÉ≤àYG á«Yhô°ûe ójóëàH ¿ƒfÉ≤dG ÖLƒªH ∫ƒîe ôNBG ∞Xƒe ;´hô°ûe ô«Z ¿Éc GPEG ô«NCÉJ ¿hO (...) ¿CG »a ,¬d QôÑe ’ ô«NCÉJ ¿hO ,≥ëdG ¬d ¿ƒµ«°S RÉéàM’G hCG ∫É≤àYÓd ¢Vô©àj ¢üî°T …CG (h) ¬«∏Y ¢†Ñ≤dG øY √QÉ«N Ö°ùM ø««æ©ªdG ¢UÉî°TC’G ô£îJ ¿CG á°üàîªdG á£∏°ùdG ≈dEG Ö∏£j ¿CG hCG ô£îj ¢Uƒ°üæe ¿ƒµà°S ≥ëdG Gòg á°SQɪe ≈∏Y ¢VôØJ Oƒ«b ájCG ;√OƒLh ¿Éµe hCG ¬æé°S hCG ¬dÉ≤àYG hCG ;á«dhódG ô«jÉ©ª∏d kÉ≤ah ¿ƒfÉ≤dG »a É¡«∏Y PÉØfEÉH áØ∏µªdG äÉÄ«¡dG ¿CG ¿Éª°†d ,kÓ©a ºJ ób ∂dP øµj ºd GPEG ,ádÉ©ØdG ô«HGóàdG PÉîJG ºàj (R) ≈∏Y √QÉÑLEG ¢Vô¨d ¿ƒé°ùªdG hCG õéàëªdG ¢üî°ûdG ádÉM øe á≤ëà°ùe ô«Z ájõe …CG òNCÉJ ’ ø«fGƒ≤dG ;ôNBG ¢üî°T …CG ó°V IOÉ¡°ûdG ≈∏Y ¬eÉZQE’ hCG ,¬°ùØf ºjôéàd ∂dP ±ÓN hCG ,±GôàY’G ™e ≥Øàj ɪH ,É¡æe πc ø«H á∏°UÉØdG äGôàØdGh ÜGƒéà°SG …CG Ióe ≈∏Y ≥jó°üàdGh π«é°ùJ ºàj (ì) ;»∏ëªdG ¿ƒfÉ≤dG ’h ,¬à∏eÉ©e ¿CÉ°ûH iƒµ°T hCG Ö∏W ºjó≤J »a ≥ëdG ¬d ¿ƒµ«°S ¬«eÉëe hCG õéàëªdG ¢üî°ûdG (•) ≈dEG ,áæ«¡ªdG hCG á«fÉ°ùfEGÓdG hCG á«°SÉ≤dG á∏eÉ©ªdG Ühô°V øe √ô«Z hCG Öjò©àdG ΩGóîà°SG óæY ɪ«°S äÉ£∏°ùdG ≈dEG ,AÉ°†àb’G óæYh ,≈∏YC’G äÉ£∏°ùdG ≈dEGh RÉéàM’G ¿Éµe IQGOEG øY ádhDƒ°ùªdG äÉ£∏°ùdG ;º∏¶àdG ™aQ hCG ô¶ædG IOÉYEG á£∏°ùH ádƒîªdG á°üàîªdG QôÑe ’ ô«NCÉJ ¿hO É¡«∏Y OôdGh QƒØdG ≈∏Y ¬©e πeÉ©àdG ºà«°S iƒµ°ûdG hCG Ö∏£dG Gòg πãe (…) hCG á«FÉ°†b á£∏°S ΩÉeCG ¬©aQ »cÉ°û∏d ≥ëj ,•ôتdG ô«NCÉàdG hCG iƒµ°ûdG hCG Ö∏£dG ¢†aQ ádÉM »a ;¬d hCG Ö∏W ºjó≤J AGôL øe »cÉ°ûdG hCG ¿ƒé°ùªdG hCG õéàëªdG ¢üî°ûdÉH ¢SÉ°ùe …CG ¿hO ;iôNCG á£∏°S ;iƒµ°T kÉfƒfÉb PÉØædG ÖLGh ≥M ¬d ¿ƒµj »fƒfÉ≤dG ô«Z RÉéàM’G hCG ¢†Ñ≤∏d á«ë°V ¿Éc ¢üî°T πc (∑) .¢†jƒ©àdG Ö∏W »a ádOÉY áªcÉëe »a q≥ëdG 5.1.3

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O Iôq ëdG ΩÓYE’G πFÉ°Shh äÉeƒ∏©ªdGh ô«Ñ©àdG ájq ôM ô¶fCG - äÉeƒ∏©ª∏d ôq ëdG ≥aódG 148,121,119,117 (É¡JOGQEG øY kɪZQ á«q eƒ≤dG äÉ«q ∏bCÓd) èeódG :äÉHÉîàf’G kÉ°†jCG ô¶fCG - á«q WGôbƒªjódG 96,94,92,89,88,55,54,51,50,43,37,29,28,27,22,21,20,16,15,13,11,10,9 ΩÉY 225,195,184,179,150,145,141,137,126,101,99,98 126,103,99-92,90,73,72,69,55,54,53,51,29,28,21,20 á«q WGôbƒªjódG äÉ°ù°SDƒªdG 221,219,218,185,143,140 141,138,137,118,92,88,27,22,21,17,16 á«q °SÉ«°ùdG ájOóq ©àdG 90,52 ºµëdG »a ácQÉ°ûªdG »a øWGƒªdG ≥ q M 93 äÉ£∏°ùdG π°üa Ió«≤©dGh øjódGh ô«ª°†dGh ô«µØàdG ájq ôM ô¶fCG - ájq ôM ,øjódG Q 209,204 q¥ôdG :»àæ°p ùdGh ÉehôdG 189,182,166-154,144,83,80,79,76-59,21,20 ΩÉY »a ¿hÉ©àdGh øeC’G ᪶æe á≤£æe øª°V »àæ°p ùdGh ÉehôdG ™°Vh ø«°ùëàd πª©dG á£N 189,166,164,163,161,159,158,156,155,83,79,65,59 ÉHhQhCG 158-157,155,64-59,21,20 »àæ°p ùdGh ÉehôdG ÉjÉ°†≤H ≥q∏©àj Ée »a ∫É°üJ’G á¡L

¢S :øé°ùdG 213,103,73 ¿ƒé°ùdG ìÓ°UEG Öjò©àdG kÉ°†jCG ô¶fCG -176-175,111,109,108,106-104 AÉæé°ùdG ¥ƒ≤M ,AÉæé°ùdG á∏eÉ©e »Ø°q ù©àdG ∫É≤àY’G ô¶fCG - »Ø°q ù©àdG øé°ùdG ô°ûÑdG »æÑH QÉéJ’G kÉ°†jCG ô¶fCG , 209,204,138,88 …ô°ù≤dG πª©dG/Iôî°ùdG 166 ¿ƒ«q ∏°UC’G ¿Éµ°ùdG »àæ°p ùdGh ÉehôdG ô¶fCG - ÉehôdGh »àæ°p ùdG ¢T 209,205,198,196,167,153,60 ¿ÉqÑ°ûdG ,ÜÉÑ°ûdG

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242  »Yƒ°Vƒe ∞«æ°üJ :∫h’G ó∏éªdG ÉHhQhCG »a ¿hÉ©àdGh øeC’G ᪶æªd »fÉ°ùfE’G ó©ÑdG äÉeGõàdG

• 186,185,168 Aƒé∏dG ÖdÉW AÉØYE’G ΩɵMCG ;áeÉ©dG ÇQGƒ£dG ádÉM ô¶fCG - áeÉY ÇQGƒW ® :πª©dG ±hôX 172,137 ΩÉY 126-121,81 ø««aÉë°ü∏d

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Æ »àæ°p ùdGh ÉehôdG ô¶fCG - ôé¨dG ± 232,222,212,220,218,214,213,204,137,99-98 OÉ°ùØdG

243 ÉHhQhCG »a ¿hÉ©àdGh øeC’G ᪶æªd »fÉ°ùfE’G ó©ÑdG äÉeGõàdG »Yƒ°Vƒe ∞«æ°üJ :∫h’G ó∏éªdG

áq«WGôbƒªjódG ô¶fCG - äÉ£∏°ùdG π°üa »a q≥ëdG ,ádÉq©a äÉLÓY ô¶fCG - äÉLÓY ,ádÉq©a ¥ »dhódG »fÉ°ùfE’G ¿ƒfÉ≤dG ô¶fCG - »fÉ°ùfE’G ¿ƒfÉ≤dG :»dhódG »fÉ°ùfE’G ¿ƒfÉ≤dG 236-234,231,230,183,168,58,13 ΩÉY á«q aÉ°VE’G É¡J’ƒcƒJhôHh 1949 ΩÉ©∏d ∞«æL äÉ«q bÉØJG 106 kÉeƒªY É¡H ±ô੪dG ÇOÉѪdG ,»dhódG ¿ƒfÉ≤dG »a ÜQÉ°†J ,»dhódG ¿ƒfÉ≤dG ÖLƒªH äÉÑLGƒdG ô¶fCG - ÖLƒªH äÉÑLGƒdG ,»dhódG ¿ƒfÉ≤dG …QÉÑLE’G ó«æéàdG ô¶fCG - ó«æéàdG ,…ô°ù≤dG AÉ°†≤dG ∫Ó≤à°SG ô¶fCG - ∫Ó≤à°SG ,AÉ°†≤dG 234,233,220,219,175,115,103,96øeCÓd ájq ôµ°ù©dG - á«q °SÉ«°ùdG OÉ©HC’G ¿CÉ°ûH ∑ƒ∏°ùdG óYGƒb 234,195,193,189,185-182,82,79,65,64 õ««ªàdG ΩóYh íeÉ°ùàdG kÉ°†jCG ô¶fCG ,á«q fGhó©dG á«q eƒ≤dG AÉØYE’G ΩɵMCG ô¶fCG -,¿É°ùfE’G ¥ƒ≤M ≈∏Y á«q Yô°T Oƒ«b ∑ 234,199-181,173,172,163,155,154,144,114,83,82,79,68,67,65,64,33 ÖfÉLC’G á«q gGôc õ««ªàdG ΩóYh íeÉ°ùàdG kÉ°†jCG ô¶fCG

∫ :Iôé¡dG kÉ°†jCG ô¶fCG - ¿ƒÄLÓdG 234,232,231,230,229,221,218,201,186,183,175,168-167,166,127,91,15 ΩÉY 232,221,201,168,167 ø«ÄLÓdG ™°VƒH á°q UÉîdG á«q bÉØJ’G 218 ájq ô°ù≤dG IOÉYE’G ΩóY CGóÑe 134-127 äÓFÉ©dG πª°T ºq d

Ω πNq óàdG ΩóY CGóÑe ¥ÉÑ£fG ΩóY ô¶fCG - πN q óàdG ΩóY CGóÑe ô°ûÑdG »æÑH QÉéJ’G ô¶fCG - ô°ûÑdG »æÑH IôLÉàªdG 196,186,159 ábôëªdG 215,208,195,186,185,98,97,96,90,73,70,69,68,50-46,28,21,20,13,12 ,»fóªdG ™ªàéªdG ¿É°ùfE’G ¥ƒ≤M øY ø«©aGóªdGh ,á«q eƒµëdG ô«Z äɪ¶æªdG kÉ°†jCG ô¶fCG 228,225,217 50-56 ¿É°ùfE’G ¥ƒ≤M øY ¿ƒ©aGóªdG ICGôªdG ¥ƒ≤M ô¶fCG - »YɪàLE’G ´ƒædG »a IGhÉ°ùªdG πFÉ°ùe ICGôªdG ¥ƒ≤M ô¶fCG - ICGôªdGh πLôdG ø«H ¥ƒ≤ëdG »a IGhÉ°ùªdG ô«°üªdG ôjô≤J ô¶fCG - ܃©°ûdG ø«H ¥ƒ≤ëdG »a IGhÉ°ùªdG AÉ°†≤dG ∫Ó≤à°SG ô¶fCG - ᪵ëe ,áq∏≤à°ùe õ««ªàdG ΩóYh íeÉ°ùàdG kÉ°†jCG ô¶fCG 187,185,68,21,20 ™e íeÉ°ùàdG ΩóY ,ø«ª∏°ùªdG »a ≥q ëdG ,ádOÉY áªcÉëe ô¶fCG - IAGôÑdG áæq ¶e

244  »Yƒ°Vƒe ∞«æ°üJ :∫h’G ó∏éªdG ÉHhQhCG »a ¿hÉ©àdGh øeC’G ᪶æªd »fÉ°ùfE’G ó©ÑdG äÉeGõàdG

IqôëdG ΩÓYE’G πFÉ°Shh äÉeƒ∏©ªdGh ô«Ñ©àdG áqjôM ô¶fCG - áqjôM ,äÉeƒ∏©ªdG áq«eƒ≤dG äÉq«∏bC’G ô¶fCG - áq«eƒ≤dG äÉq«∏bCÓd »eÉ°ùdG ¢Vƒq تdG ô°ûÑdG »æÑH QÉéJ’G ô¶fCG - ô°ûÑdG »æÑH QÉéJ’G áëaɵe ÜÉgQE’G ô¶fCG - ÜÉgQE’G áëaɵe OÉ°ùØdG ô¶fCG - OÉ°ùØdG áëaɵe áq«WGôbƒªjódG äÉ°ù°SDƒªdG Öàµe kÉ°†jCG ô¶fCG 142,91,53,51,21,20 ,IqôëdG äÉHÉîàf’G Öàµe ¿É°ùfE’G ¥ƒ≤Mh 41,40,39,34,21,20,12,11,10,9 (ODIHR) ¿É°ùfE’G ¥ƒ≤Mh áq«WGôbƒªjódG äÉ°ù°SDƒªdG Öàµe 218,203,194,191,190,186,184,168,166,155,118,92,83,82,81,79,78,74,73-51,50,49 220 Öjò©àdG kÉ°†jCG ô¶fCG 108,104 á«Ø°q ù©àdG ,áq«Ñ£dG äÉ°SQɪªdG ΩÓYE’G πFÉ°Shh äÉeƒ∏©ªdGh ô«Ñ©àdG áqjôM kÉ°†jCG ô¶fCG ,ΩÓYE’G πFÉ°Sh áqjôëH ¢UÉîdG πq㪪dG 220,194,184,168,151,126,83-81,79,65,33,21,20,9 IqôëdG 135,126,121,120 áqjôµØdG áq«µ∏ªdG ÜÉgQE’G ô¶fCG - ÜÉgQE’G á°†gÉæe 107,100,98,77,76,69,59,57,56,55,53,50-46,45,41,35,21,20 ,áq«eƒµëdG ô«Z äɪ¶æªdG »fóªdG ™ªàéªdG kÉ°†jCG ô¶fCG 215,203,193,186,167,154,143,119,114,112,110 ¿hôLÉ¡ªdG ∫Éqª©dG ô¶fCG - ∫Éqª©dG ,¿hôLÉ¡ªdG AÉ°†≤dG ∫Ó≤à°SG ô¶fCG - ∫Ó≤à°SG ,á«fƒfÉ≤dG ø¡ªdG Öjò©àdG ô¶fCG - á∏eÉ©ªdG ,áæ«¡ªdG áæWGƒªdG/áq«°ùæédG ô¶fCG - áæWGƒªdG ¿É°ùfE’G ¥ƒ≤ëd áq«æWƒdG äÉ°ù°SDƒªdGh …hɵ°ûdG/ºdɶªdG AÉæeCG ô¶fCG - ¿É°ùfE’G ¥ƒ≤M äÉ°ù°SDƒe IóëàªdG ºeC’G ¥Éã«e ¿ ΩÉY :¿ƒÄLÓdG ;Iôé¡dG ;Aƒé∏dG ÖdÉW ;Aƒé∏dG ≈∏Y ∫ƒ°üë∏d »©°ùdG ≥q M kÉ°†jCG ô¶fCG - ¿ƒMRÉædG 234,208,183,175,168-167,166 186,168 É«∏NGO ¿ƒMRÉædG ¿CÉ°ûH á«q ¡«LƒàdG IóëàªdG ºeC’G ÇOÉÑe Iôé¡dG ;¿ƒMRÉædG ô¶fCG - º¡fGó∏H πNGO ¿ƒMRÉædG õ««ªàdG ΩóYh íeÉ°ùàdG kÉ°†jCG ô¶fCG 182 ,á«q ©°SƒàdG áYõædG »Ø°q ù©àdG ∫É≤àY’G kÉ°†jCG ô¶fCG 110,104 ,»Ø°q ù©àdG »ØædG 173,153,138,119,118,94,88,48 ájq ôM ,äÉ«q ©ªédG AÉ°ûfEG kÉ°†jCG ô¶fCG ,∫ɪ©dG äÉHÉ≤f

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245 ÉHhQhCG »a ¿hÉ©àdGh øeC’G ᪶æªd »fÉ°ùfE’G ó©ÑdG äÉeGõàdG »Yƒ°Vƒe ∞«æ°üJ :∫h’G ó∏éªdG

ò«ØæàdG ÖLGh ô¶fCG - ádhódG äÉÑLGh Iôq ëdG ΩÓYE’G πFÉ°Shh äÉeƒ∏©ªdGh ô«Ñ©àdG áqjôM ô¶fCG - IqôëdG ΩÓYE’G πFÉ°Sh IqôëdG ΩÓYE’G πFÉ°Shh äÉeƒ∏©ªdGh ô«Ñ©àdG áqjôM ô¶fCG - áqjôM ,ΩÓYE’G πFÉ°Sh

246

OSCE HUMAN DIMENSION COMMITMENTS Volume 1 OSCE HUMAN DIMENSION COMMITMENTS Thematic Compilation

Second Edition

ODIHR OSCE HUMAN DIMENSION COMMITMENTS Volume 1

Thematic Compilation

2nd Edition Published by the OSCE Office for Democratic Institutions and Human Rights (ODIHR) Al. Ujazdowskie 19 00-557 Warsaw, Poland www.osce.org/odihr

© OSCE/ODIHR 2005

All rights reserved. The contents of this publication may be freely used and copied for educational and other non-commercial purposes, provided that any such reproduction is accompanied by an acknowledgement of the OSCE/ODIHR as the source.

ISBN 83-60190-05-4

Designed by Nona Reuter

Printed in Poland by Poligrafus Andrzej Adamiak

The ODIHR would like to thank the participating States that provided support for the publication of this book. Contents

Foreword ix Foreword to the First Edition xi Preface: How to Use This Compilation xiii The Human Dimension of the OSCE: An Introduction xv OSCE Documents Referred to in This Compilation xxv

I. General Provisions Related to the Human Dimension 1

1. An Introduction to the Human Dimension 3 1.1 The Nature and Importance of the Human Dimension 3 1.2 The Human Dimension as a Matter of Direct and Legitimate International Concern 6

2. Implementation of Commitments 7 2.1 The Obligation to Implement 7 2.2 Methods of Implementation 9 2.2.1 General Provisions, Including Human Rights Education 9 2.2.2 Review of Implementation 11 2.2.3 Election Observation 12 2.2.4 Human Dimension Mechanisms and Other Relevant Mechanisms 12 A. Vienna Mechanism 12 B. Moscow Mechanism 13 C. Mechanism to Assist Participating States in Combating Trafficking in Human Beings 19 D. Counter-Terrorism Network 21 E. Other Mechanisms 22 2.3 Partners in Implementation 23 2.3.1 Governments; Government Bodies and Institutions 23 2.3.2 Governments of Other Countries and International Organizations 24 2.3.3 Individuals, Human Rights Defenders, and Non-governmental Organizations 25 2.3.4 OSCE Institutions with Particular Relevance to the Human Dimension 30 A. The Office for Democratic Institutions and Human Rights (ODIHR) 31 I. General Mandate, Including Additional General Tasks 31 II. Additional Tasks Related to Elections 39

OSCE Human Dimension Commitments  Contents

III. ODIHR Contact Point for Roma and Sinti Issues 40 IV. Additional Tasks Related to Tolerance and Non-discrimination, Including Roma and Sinti Issues 45 V. Additional Tasks Related to Gender Equality 50 VI. Additional Tasks Related to Combating Trafficking in Human Beings 51 VII. Additional Tasks Related to Combating Terrorism 53 B. The High Commissioner on National Minorities 54 C. The Representative on Freedom of the Media 62

3. Restrictions and Derogations 67 3.1 Scope and Character of Legitimate Restrictions 67 3.2 Derogations from Obligations During a State of Public Emergency 68

II. Specific Human Dimension Commitments 71

1. Commitments Related to the Right of Peoples to Self-determination 73

2. Commitments Related to Structural Components of a Democratic Society 75 2.1 General Provisions 75 2.2 Elections 77 2.3 Democratic Institutions 80 2.3.1 General Provisions 80 2.3.2 Decentralized Government and Special Structures and Bodies 83 2.3.3 Democratic Civilian Control of Military, Paramilitary, and Internal Security Forces; Intelligence Services; and the Police 84 2.3.4 Independent National Human Rights Institutions 85 2.3.5 Non-governmental Organizations 86 2.3.6 Promoting Transparency, Combating Corruption, and Improving the Management of Public Resources 87

2.4 Rule of Law 88 2.4.1 General Provisions 88 2.4.2 Independence of the Judiciary and Legal Practitioners, and Impartial Operation of the Public Judicial Service 91 2.4.3 Administration of Justice 93 A. Law Enforcement 93 B. Treatment of Persons Deprived of Their Liberty 94 2.4.4 Fulfilment of International Obligations 96

3. Commitments Related to Human Rights That Are Applicable to All 97 3.1 Civil and Political Rights 97 3.1.1 General Provisions 97

vi OSCE Human Dimension Commitments  Contents

3.1.2 Right to Life/Abolition of the Death Penalty 98 3.1.3 Prohibition of Torture and Other Cruel, Inhuman, or Degrading Treatment or Punishment 98 3.1.4 Freedom from Arbitrary Arrest or Detention 101 3.1.5 Right to a Fair Trial 103 3.1.6 Right to Effective Remedies 104 3.1.7 Conscientious Objection and Alternative Service 106 3.1.8 Freedom of Thought, Conscience, Religion, or Belief 107 3.1.9 Freedom of Association and the Right of Peaceful Assembly 110 3.1.10 Freedom of Expression, Free Media and Information 111 A. General Provisions 111 B. Media Freedom and Working Conditions for Journalists 114 C. Freedom of Cultural or Artistic Expression 120 3.1.11 Freedom of Movement, Human Contacts, and Family Reunification 122 3.1.12 Respect for Private and Family Life 130 3.1.13 Right to Nationality 130 3.1.14 Property Rights 130

3.2 Economic, Social, and Cultural Rights 131 3.2.1 General Provisions 131 3.2.2 Economic and Social Rights 132 A. General Provisions 132 B. Workers’ Rights 134 3.2.3 Cultural Rights/Cultural Heritage 135 3.2.4 Right to Education 137

4. Commitments Related to Human Rights with a Focus on Specific Groups 139 4.1 National Minorities 139 4.1.1 Protection of Human Rights and Fundamental Freedoms, Including Equality of Opportunity and Non-discrimination 139 4.1.2 Effective Participation in Public and Political Life 146 4.1.3 Cultural, Linguistic, and Religious Identity, and Education 148 4.1.4 Human Contacts, Free Media and Information 151 4.1.5 Role of Organizations and Associations 153 4.1.6 Protection Against Hate-Related Crime 155

4.2 Roma and Sinti 155 4.2.1 Protection of Human Rights and Fundamental Freedoms, Including Equality of Opportunity and Non-discrimination 155 4.2.2 Effective Participation in Public and Political Life 159 4.2.3 Access to Education 161 4.2.4 Socio-economic Issues 163 4.2.5 Racism and Discrimination 165 A. Combating Racism and Stereotypes 165

OSCE Human Dimension Commitments vii Contents

B. Protection Against Hate-Related Crimes 166 4.2.6 Crisis and Post-Crisis Situations 168 4.3 Indigenous Populations 168 4.4 Refugees, Displaced Persons, Returnees, and Stateless Persons 169 4.5 Migrant Workers 172 4.6 Persons with Disabilities 176 4.7 Children 177 4.8 Armed Forces Personnel 178 4.9 Persons in Detention or Prison 178

5. Commitments Related to Equality, Tolerance, and Non-discrimination 181 5.1 Equality and Non-discrimination Clauses 181 5.2 Equal Rights of Men and Women 182 5.3 Combating Acts Motivated by Prejudice, Intolerance, and Hatred 186 5.3.1 General Provisions 186 5.3.2 International Instruments 194 5.3.3 Legislation and Enforcement of Laws and Policies 195 5.3.4 Data Collection and Monitoring 198 5.3.5 Promotion of Tolerance, Understanding, and Respect, Including Remembrance 200 5.3.6 Role of the Media 206

6. Commitments Related to Specific Threats to Human Security 209 6.1 Prevention of Gender-Based Persecution, Violence, and Exploitation 209 6.2 Prevention of Trafficking in Human Beings 210 6.2.1 General Provisions Regarding Prevention 210 6.2.2 Investigation, Law Enforcement, and Prosecution 220 6.2.3 Protection of Victims and Provision of Assistance 225 6.3 Prevention of Illicit Trafficking in Drugs and Arms, and Other Forms of International Organized Crime 230 6.4 Prevention of Terrorism 232 6.4.1 Condemnation of, and Commitment to Combat, Terrorism 232 6.4.2 Respecting Human Rights and the Rule of Law While Combating Terrorism 244 6.4.3 Prevention of Terrorism-Related Activities on the Territory of Participating States 245 6.4.4 Extradition and Prosecution of Persons Implicated in Terrorist Acts 247

7. Commitments Related to International Humanitarian Law 249 Index 253

viii OSCE Human Dimension Commitments Foreword

I am pleased to present this second edition of our reference guide to OSCE human dimension commitments in the year when we celebrate the 30th anniversary of the Helsinki Final Act. Signed in 1975, the Final Act remains a fundamental cornerstone not only of the wider security framework in Europe and throughout the OSCE region, but it is also guides the work of my institution, the OSCE’s Office for Democratic Insti- tutions and Human Rights. The Helsinki Final Act was the first international document that recognized the pro- tection of human rights and fundamental freedoms as a matter of international con- cern. It is one of 10 fundamental principles of interstate relations, on the same level and status as the classical rules of international relations we have known since the begin- ning of the modern age. But the world has changed considerably since 1975. And so has the framework devel- oped by the OSCE for the entire region. Since the historic changes of 1989, the states of Europe have taken the basic outline of the Helsinki Final Act and developed it into a comprehensive set of norms and standards, in particular with respect to human rights. These basic rights, together with democracy and the rule of law, are the building blocks of what the OSCE terms the human dimension of security. At the 1990 Copenhagen Conference on the Human Dimension, OSCE states laid the groundwork for what would become the fundamental rule book for the entire OSCE region, the acquis of many of the world’s developed democracies. It has, so far, not been matched by any comparable international exercise and continues to guide us in our daily work. Thus, the Helsinki framework has been further developed ever since and has become a comprehensive set of standards. While the details of all of the related commitments can be found in this compilation, their essence is to be found in a few basic princi- ples: that respect for human rights and fundamental freedoms is at the heart of the OSCE’s concept of security; and that states are accountable to all of their citizens, and to one another, for ensuring that these rights and freedoms are indeed respected and protected. The OSCE states have affirmed that the ODIHR, together with the High Commis- sioner on National Minorities and the Representative on Freedom of the Media are

OSCE Human Dimension Commitments ix Foreword

essential instruments in ensuring respect for human rights, democracy, and the rule of law. In 2001, the ODIHR produced a compilation of human dimension commitments in order to facilitate access to them. This compilation has been an invaluable reference tool for all of us involved in promoting human rights, democracy, and the rule of law. However, new pledges and decisions made by the OSCE call for a continued update. This revised compilation contains chronological and thematic parts, and is now pub- lished in two volumes due to its expanding body of commitments. In the end, it all comes down to what US President Gerald Ford said after signing the Helsinki Final Act thirty years ago, namely that it does not matter what promises we make, but what promises we keep. The OSCE participating States have created an impressive body of norms and principles in the area of the human dimension. I hope that the present publication will further promote the knowledge and the implementa- tion of the many commitments that the OSCE participating States have made to benefit their one billion inhabitants.

Ambassador Christian Strohal Director of the OSCE Office for Democratic Institutions and Human Rights

 OSCE Human Dimension Commitments Foreword to the First Edition

F rom the outset, the Conference on Security and Co-operation in Europe (CSCE), later transformed into the Organization for Security and Co-operation in Europe (OSCE), has been very much a “work in progress”, an on-going process that has led to a significant expansion of its normative foundations. This expansion accelerated rapidly following the end of the Cold War, in a spirit of openness and change that very much characterizes the Charter of Paris for a New Europe and other documents adopted in the early 1990s. Since the signing of the Helsinki Final Act in 1975, the CSCE/OSCE has accumulated a substantial body of commitments in the fields of human rights, democracy, rule of law and national minorities. These commitments relating to the so-called human dimen- sion of the OSCE are contained in an ever-growing set of documents adopted by CSCE/ OSCE Summits and other political forums. As a result, it has become increasingly dif- ficult to survey the achievements that have been made in developing new standards for the CSCE/OSCE area. As early as 1992, the Helsinki Summit recommended “the drawing up of compila- tions of existing CSCE Human Dimension commitments in order to promote greater understanding of the implementation of these commitments”. Subsequently, the OSCE Office for Democratic Institutions and Human Rights (OSCE/ODIHR) produced in 1995 a chronological compilation of human dimension commitments. This compilation represented a first and important step towards facilitating access to the OSCE’s body of commitments. However, five years and two OSCE Summits later, that publication has become outdated. Moreover, its usefulness had always been limited due to its purely chronological structure and the absence of an index. In the year of the 10th anniversary of the OSCE/ODIHR, the OSCE’s main institution dealing with the human dimension, I am pleased to present to the public a completely revised compilation of OSCE human dimension commitments, which contains not only an update of the chronological part, but also, for the first time ever, a thematic part list- ing all relevant human dimension commitments topic-by-topic. I am convinced that this publication represents a much-needed, user-friendly and practical tool for governments, OSCE personnel and the general public to easily access OSCE commitments on specific topics, as well as chronologically.

OSCE Human Dimension Commitments xi Foreword to the First Edition

One of the reasons for the success of the Helsinki Final Act was the agreement by all signatory States to publish the document and disseminate it in their countries as widely as possible. This enabled the citizens of the participating States to inform themselves about the commitments their governments had undertaken and to call their country’s leadership to account for failing to put these commitments into practice. By publishing and distributing this compilation, the OSCE/ODIHR seeks to contrib- ute to a better knowledge and understanding of OSCE commitments in the field of the human dimension — among the OSCE governments as well as among the citizens and civil society actors in the OSCE region. I strongly hope that this publication thus will ultimately also foster further progress in the implementation of these commitments by the governments of the OSCE participating States.

Ambassador Gérard Stoudmann Director of the OSCE Office for Democratic Institutions and Human Rights, 1997-2002

xii OSCE Human Dimension Commitments Preface: How to Use This Compilation

B eginning with the Helsinki Final Act in 1975, the now 55 participating States of the OSCE region have adopted a large number of politically binding commitments relat- ing to what has become known as the human dimension of the OSCE’s comprehen- sive security concept. The selection of commitments contained in the thematic and the chronological parts of this publication was made on the basis of a definition of the term human dimension as it is used today, encompassing all aspects related to human rights and fundamental freedoms; democracy, including democratic elections and democratic governance and institutions; tolerance and non-discrimination; and the rule of law, as well as to national minorities, human contacts, and international humanitarian law.1 In addition, the compilation includes provisions for mechanisms to monitor the imple- mentation of these commitments, as well as the basic mandates of the OSCE institu- tions active in the field of the human dimension. The documents used for this publication were signed, or otherwise adopted, by var- ious high-level CSCE/OSCE forums. While these documents do not have the charac- ter of legally binding treaties under international law, they represent political commit- ments, adopted by consensus and binding on each participating State. As they are all adopted by consensus, they are, as it were, of immediate effect and are immediately applicable and can be invoked by any citizen or OSCE government directly vis-à-vis any government of a participating State. Moreover, OSCE commitments reinforce, rather than duplicate, obligations contained in international law and conventions, as they con- tain a commitment to implement those, and to do so in good faith. The human dimension provisions contained in this compilation are laid down in the documents that emerged from summits, follow-up meetings, conferences on the human dimension, and, where relevant, Ministerial Council meetings since 1975. Also included are documents that were produced by relevant expert meetings and later incorporated into the CSCE/OSCE body of commitments by other forums. While the goal of this publication is to present a comprehensive account of the OSCE’s normative basis in the field of the human dimension, no attempt has been made to produce a complete inventory of every part of a sentence that could possibly be con- 1 This definition is also reflected in the agenda of the annual OSCE Human Dimension Implementation Meeting.

OSCE Human Dimension Commitments xiii Preface: How to Use This Compilation

ceived to have a human dimension aspect. It should be stressed that while this compi- lation focuses on the human dimension, and therefore human rights and democracy, OSCE commitments should always be read and understood in the context of the com- prehensive security concept, which also encompasses politico-military issues, as well as economic and environmental aspects. The fact that a particular commitment has or has not been included in this compilation does not mean that it is not relevant. For rea- sons of pure practicality, a line had to be drawn somewhere, as the intention was to pro- vide a user-friendly reference guide, rather than an encyclopaedia. It is intended for use by government officials and civil society organizations, academics, students, and prac- titioners alike.

xiv OSCE Human Dimension Commitments The Human Dimension of the OSCE: An Introduction

T his year, the Organization for Security and Co-operation in Europe (OSCE) is com- memorating the 30th anniversary of the signing of its founding document, the Hel- sinki Final Act. Since 1975, the OSCE has created a large set of human rights norms and standards that are generally reflective of traditional human rights norms and concepts as enshrined in other international human rights treaties and declarations. Building on these, however, the OSCE has also developed a number of standards that are highly innovative both in terms of style and substance. This publication is intended to make OSCE commitments more accessible to citi- zens and governmental officials alike, in keeping with one of the most important les- sons learned in the Helsinki process. Human rights start with an element of empower- ment, or with the “right to know your right”. When the Helsinki Final Act was adopted, participating States were committed to making the document widely accessible. This helped spark the creation of many important human rights groups, such as the Helsinki groups and Charter 77, which found the reference for their work in the Helsinki proc- ess and contributed to the collapse of Communist monopoly rule in Central and East- ern Europe. The OSCE human rights framework has thus been one of the most effective human rights frameworks, and it continues to play an important role today. It is a unique framework, comprising a set of documents that, among other innova- tions, makes human rights an issue of legitimate concern between states. Its basis can be found in the Helsinki Final Act, but subsequent documents such as the 1990 Copen- hagen Document and the 1990 Charter of Paris for a New Europe have added other important foundations that are needed to understand the OSCE human dimension as it exists today. The purpose of this article is to provide guidance on how to read and use these norms and to give an introduction to some of the basic aspects of the human dimension of the OSCE.2 2 The Conference on Security and Co-operation in Europe (CSCE) was renamed the Organization for Security and Co-operation in Europe (OSCE) in 1994. For practical purposes, only the term OSCE will be used in this article.

OSCE Human Dimension Commitments xv The Human Dimension of the OSCE: An Introduction

A. The main foundations 1. Human rights and the OSCE’s comprehensive concept of security

The OSCE was created as a security organization. However, it does not deal exclusively with issues of military security, disarmament, or border issues. Based on a broad con- cept of security, it deals equally with human rights. The OSCE considers security more than merely the absence of war. Instead, it was the intention of the OSCE participating States to create a comprehensive framework for peace and stability in Europe. The Hel- sinki Final Act acknowledges as one of its 10 guiding principles the “(r)espect for human rights and fundamental freedoms, including the freedom of thought, conscience, reli- gion or belief”. This constitutes a milestone in the history of human rights protection. For the first time, human rights principles were included as an explicit and integral ele- ment of a regional security framework on the same basis as politico-military and eco- nomic issues. This acknowledgement has been reinforced by numerous follow-up docu- ments. It is therefore now well established and beyond question. There is no hierarchy among these principles, and no government can claim that they have to establish politi- cal or economic security before addressing human rights and democracy. Recent history proves the validity of the OSCE concept that a free society allowing everyone to fully participate in public life is a safeguard against conflict and instability. For example, the exclusion of individuals or certain groups from society, sometimes on ethnic grounds, has led to tensions and sometimes even armed conflict. The impact of refugee crises on security, often as a result of massive human rights abuses, is another example. In OSCE terminology, the term human dimension is used to describe the set of norms and activities related to human rights, democracy, and the rule of law, which is regarded within the OSCE as one of three dimensions of security, together with the politico-mili- tary and the economic and environmental dimensions. The term also indicates that the OSCE norms in this field cover a wider area than traditional human rights law.

2. The OSCE “process”

Since its beginnings, the OSCE has followed a process approach. The Helsinki Final Act provides for regular follow-up conferences and meetings. This is very important for understanding the OSCE human rights framework. First, it means that there is a forum for discussing the implementation of the stand- ards agreed in previous meetings. Second, it has led to a set of successive OSCE docu- ments specifying and elaborating the human dimension commitments adopted in past documents. As a result, the OSCE has developed a very flexible and dynamic norm-cre- ating process in the human rights field, a process that is ongoing. Among the innova- tions adopted in recent documents is, for example, the acknowledgement of traffick- ing in human beings, previously treated most often in an organized-crime context, as a human rights concern (Vienna Ministerial Council 2000).

xvi OSCE Human Dimension Commitments  The Human Dimension of the OSCE: An Introduction

OSCE commitments generally take the form of documents adopted by consensus at OSCE summits or ministerial meetings. Each meeting takes place in a particular politi- cal climate and context. Not surprisingly, the OSCE summits have therefore played dif- ferent roles in creating new commitments. Whereas some meetings, in particular in the early 1990s, created a large set of important new norms, others restricted themselves to minor changes and additions. This process approach has led to a large number of OSCE documents. As a result, it is not always easy for practitioners to find out which standards apply to a specific situa- tion, in particular as each document contains, to a varying degree, repetitions and inno- vations. As a basic guideline, the user should note that all documents together form the existing framework of the OSCE. Thus, a document does not become invalid when new documents are adopted. The documents build on each other and constitute what could be called the OSCE acquis. They have been adopted by consensus and thus are politi- cally binding on all OSCE participating States. This also applies to newly admitted par- ticipating States, which are required to accept the acquis upon accession. Consequently, a user should not rely only on a single document, but should check the whole range of existing documents in order to find the actual scope of commitments on a given right or fundamental freedom. Often, an early document stipulates only a gen- eral principle that then is further elaborated in subsequent documents. However, since the commitments and documents build on each other, a commitment in an early doc- ument does not lose its force if a subsequent document has only a general reference to this right. At the same time, each document as a whole reflects a specific historical context and its structure follows a certain logic that puts the different parts of the document in a wider context. Reading the document in its entirety can thus equally provide important information as to the understanding and interpretation of the norms concerned. This explains the dual approach in this compilation, which consists of thematic and chrono- logical components.

3. Human dimension commitments and pluralistic democracy based on the rule of law

In a number of cases, OSCE human dimension commitments go far beyond the level provided for in “traditional”, legally binding human rights instruments. In traditional human rights treaties, individual (or group) rights are formulated, and the state party has the obligation to respect and/or guarantee those rights. How to implement these obligations, however, is most often left to the discretion of the states. The OSCE human dimension goes much further in linking human rights with the institutional and political system of a state. In essence, OSCE states have agreed through their human dimension commitments that pluralistic democracy based on the rule of law is the only system of government suitable to guarantee human rights effectively. This explains why the OSCE human dimension has been described as a common pan-European public order (ordre public). In other words, the OSCE is not simply an organization of 55 participating States but a “community of values”. This linkage is also reflected in the strong commitment to the rule of law and in the way it is formulated, as

OSCE Human Dimension Commitments xvii The Human Dimension of the OSCE: An Introduction

a concept based on the dignity of the human person and a system of rights through law/ legal structures.

4. Politically binding commitments

The OSCE process is essentially a political process that does not create legally bind- ing norms or principles. Unlike many other human rights documents, OSCE human dimension commitments are politically, rather than legally, binding. This is an impor- tant distinction since it limits the legal enforceability of OSCE standards. In other words, OSCE commitments cannot be enforced in a court of law. However, this should not be mistaken as indicating that the commitments lack binding force. The distinction is between legal and political and not between binding and non-binding. This means that OSCE commitments are more than a simple declaration of will or good intentions; rather, they are a political promise to comply with these standards. While deliberations on international legal documents usually take considerable time until agreement on a final text is reached, and the final documents are subject to ratifi- cation and reservations, this does not apply to OSCE documents. Their political nature leads to the unique situation that, once consensus among the states has been achieved, decisions enter into force immediately and, in principle, are binding upon all OSCE states (the so-called universality principle). This allows the OSCE to react quickly to new needs. For example, when human rights violations in regard to minorities increased in the beginning of the 1990s, it was the OSCE that reacted first and drafted a comprehensive set of standards in the field of minority protection. Later, these political standards served as basis for the legally bind- ing Council of Europe Framework Convention on the Protection of National Minori- ties.

5. Human rights as a matter of international concern

A fundamental aspect of the OSCE’s human dimension is that human rights and pluralistic democracy are not considered an internal affair of a state. The participat- ing States have stressed that issues relating to human rights, fundamental freedoms, democracy, and the rule of law are of international concern, as respect for these rights and freedoms constitutes one of the foundations of the international order. In fact, the participating States “categorically and irrevocably” declared that the “commitments undertaken in the field of the human dimension of the OSCE are matters of direct and legitimate concern to all participating States and do not belong exclusively to the inter- nal affairs of the State concerned” (Moscow Document, 1991). Therefore, OSCE par- ticipating States are no longer in a position to invoke the non-intervention principle to avoid discussions about human rights problems within their countries. This explains why the OSCE is not only a community of values but also a community of responsibil- ity. And it has to be stressed that this responsibility focuses not only on the right to crit- icize other states concerning violations of human dimension commitments but also on the duty to assist each other in solving specific problems.

xviii OSCE Human Dimension Commitments  The Human Dimension of the OSCE: An Introduction

6. Limitations and relation to international human rights treaties

OSCE commitments reflect traditional human rights and freedoms, as well as some areas beyond the scope of traditional human rights law. As in other human rights trea- ties, an important question is the extent to which rights can be limited. This is impor- tant for any practitioner trying to identify whether or not a specific right has been vio- lated. Some of the freedoms stipulated by the OSCE contain specific limitation clauses. However, the OSCE Copenhagen Document stipulates an important general rule for those rights mentioned in this document. They will not be subject to any restrictions except those provided for by the law and consistent with other obligations under inter- national law, such as the International Covenant on Civil and Political Rights. Restric- tions must not be applied in an arbitrary manner, and they always have to be under- stood as an exception to the general rule that individual freedom must be respected. Any limitation must be strictly proportionate to the aim of the law. This proportionality test requires a narrow interpretation, particularly since any interference must be eval- uated against the great value of such fundamental freedoms to a free and open demo- cratic society.

OSCE Human Dimension Commitments xix The Human Dimension of the OSCE: An Introduction

B. Institutions and implementation

1. The responsibility to implement OSCE human dimension commitments

The human rights framework described above exists for the benefit of all people liv- ing in the OSCE area and, indeed, describes human rights and fundamental freedoms as “birth rights of all individuals”. The first responsibility for guaranteeing these rights lies with the OSCE participating States. The OSCE human dimension commitments are addressed — in line with other international human rights treaties — to the participat- ing States. The commitments reinforce this general principle in stressing that “the pro- tection and promotion of human rights and fundamental freedoms is one of the basic purposes of government”. From the beginning, it was clear that formulating standards alone is not always suf- ficient for the effective implementation of human dimension commitments. Interna- tional procedures should play an important complementary function in this regard. Consequently, the OSCE has created a set of procedures, conferences, and institutions that help to monitor and assist with the implementation of OSCE human dimension commitments. Unlike other human rights treaties, 3 the OSCE has not created a court or other indi- vidual petition body to ensure the implementation of OSCE commitments. This reflects the political character of the OSCE process and the intention not to duplicate exist- ing mechanisms. To the contrary, the OSCE reinforces these important mechanisms and calls upon participating States to subscribe to these mechanisms and to abide by standards set by other international organizations. It is also important to note that the absence of an individual-complaints process does not preclude that individual cases might be brought to the attention of the political bodies of the OSCE.

2. Summits and other follow-up meetings

As already mentioned, the Helsinki Final Act provided for regular follow-up confer- ences, reflecting the understanding that a continuous dialogue is needed to make the agreement effective. This process approach has created over time a refined system of political summits and other conferences where the implementation of OSCE commit- ments is discussed.4

3 See, for example, the European Convention of Human Rights establishing the European Court of Human Rights, or the UN International Covenant on Civil and Political Rights establishing the UN Human Rights Committee. 4 OSCE summits and Ministerial Council meetings usually adopt new declarations and documents. Review conferences precede OSCE summits and discuss the compliance with OSCE standards and prepare the final document to be adopted at the subsequent summit. OSCE human dimension implementation meetings take place in years when no OSCE summit is scheduled and provide the forum for discussing the implementation of OSCE human dimension commitments. In addition, a human dimension seminar and three supplementary human dimension meetings are organized every year. For more information, see OSCE Handbook, 4th edition, Vienna 2000.

xx OSCE Human Dimension Commitments  The Human Dimension of the OSCE: An Introduction

This complex structure of summits, meetings, conferences, and seminars generates two important effects. First, it enables the participating States to embark on a dynamic norm-creating process. The participating States can react quickly to new needs and build on previous OSCE commitments to specify their application. Second, it provides a forum for discussing the actual implementation of human dimension commitments by OSCE participating States. This reflects the principle that compliance with OSCE com- mitments is a subject of direct and legitimate concern for all OSCE participating States and does not belong to the internal affairs of any particular State. An important feature of OSCE human dimension meetings is that they are open to the active participation of non-governmental organizations (NGOs). Thus, NGOs can and do participate in addressing concerns about the actual implementation of OSCE human dimension commitments and make suggestions on how to solve problems.

3. The human dimension mechanism

In addition to these regular meetings, the OSCE has also created a so-called human dimension mechanism, the Vienna Mechanism 5 and the Moscow Mechanism, 6 the lat- ter partly constituting a further elaboration of the Vienna Mechanism. Together, they set out a process for supervising the implementation of human dimension commit- ments to be invoked on an ad hoc basis by any individual OSCE participating State. The Vienna Mechanism allows a participating State, through a set of procedures, to raise questions relating to the human dimension in another OSCE participating State. The Moscow Mechanism builds on this and provides for the additional possibility to establish ad hoc missions of independent experts to assist in the resolution of a specific human dimension problem. This includes the right to investigate alleged violations of human dimension commitments, in exceptional circumstances even without the con- sent of the accused state. In practice, the human dimension mechanism is only rarely applied, partly due to the development of the OSCE into a permanently functioning organization and partly due to the political considerations involved in invoking such ad hoc mechanisms.7

4. OSCE institutions with relevance to the human dimension

Departing from the conference approach of its early years, the OSCE has established a number of permanent institutions to assist participating States with the implementa- tion of OSCE human dimension commitments. These institutions play an increasingly important role. The following gives a very basic overview about these institutions with- out giving a full account of their activities.

5 As established in the Vienna Concluding Document of 1989. 6 The Moscow Mechanism was agreed upon at the last meeting of the Conference on the Human Dimension of the CSCE in Moscow (1991). 7 Nevertheless, the responsible OSCE institution, the Office for Democratic Institutions and Human Rights, continues to maintain an active list of experts as required by the Moscow Mechanism.

OSCE Human Dimension Commitments xxi The Human Dimension of the OSCE: An Introduction

A. The Office for Democratic Institutions and Human Rights

Originally established as the Office for Free Elections in 1990, the OSCE’s Office for Democratic Institutions and Human Rights (ODIHR), based in Warsaw, is the main institution of the OSCE for the human dimension. The 1992 Helsinki Document set the ODIHR’s mandate to help OSCE participating States “ensure full respect for human rights and fundamental freedoms, to abide by the rule of law, to promote principles of democracy and … to build, strengthen and protect democratic institutions, as well as promote tolerance throughout society.” In accordance with its mandate and tasks contained in a variety of documents, the ODIHR promotes democratic election processes through the in-depth observation of elections and conducts election assistance projects that enhance meaningful par- ticipatory democracy and assists OSCE participating States in the implementation of their human dimension commitments by providing expertise and practical support in building up democratic institutions. This is done through longer-term programmes to strengthen the rule of law, democratic governance, and civil society. It also assists OSCE field missions in their human dimension activities, through training, exchange of expe- riences, and regional co-ordination, and contributes to early warning and conflict pre- vention by monitoring the implementation of OSCE human dimension commitments by participating States. For this purpose, it also provides regular human rights training for government authorities, civil society, and OSCE staff. The ODIHR also assists participating States with the implementation of international legal obligations and OSCE commitments on anti-terrorism in compliance with inter- national human rights standards and in implementing their commitments on tolerance and non-discrimination. In this context, it also supports efforts to respond to, and com- bat, hate crimes and incidents of racism, anti-Semitism, and other forms of intolerance, including against Muslims. The ODIHR serves as the OSCE Contact Point for Roma and Sinti Issues and seeks to promote the full integration of Roma and Sinti groups into the societies in which they live. In all its activities, the ODIHR develops policies and actions to ensure gender mainstreaming and implements activities designed to improve the situation of women in the OSCE region. In order to structure its human dimension activities, it organizes regular meetings that take stock of OSCE human dimension commitments and recommends follow-up. In all its activities, the ODIHR reaches out to a network of partners active in related areas, including international and local non-governmental human rights organizations, as well as international governmental organizations, in particular the United Nations Office of the High Commissioner for Human Rights and the Council of Europe.

B. The High Commissioner on National Minorities

The OSCE High Commissioner on National Minorities, established in The Hague in 1992, is tasked to identify — and seeks early resolution of — ethnic tensions that might endanger peace, stability, or friendly relations between OSCE participating States. Operating independently of all parties involved, the High Commissioner conducts on-site missions and engages in preventative diplomacy at the earliest stage of tension.

xxii OSCE Human Dimension Commitments  The Human Dimension of the OSCE: An Introduction

In addition to seeking first-hand information, the High Commissioner seeks to promote dialogue, confidence, and co-operation.

C. The Representative on Freedom of the Media

The OSCE Representative on Freedom of the Media assists participating States in fur- thering free, independent, and pluralistic media as one of the basic elements of a func- tioning pluralistic democracy. The Representative, whose office is in Vienna, observes media developments in all participating States and advocates and promotes compliance with relevant OSCE principles and commitments.

C. Concluding remarks The OSCE participating States have created an impressive corpus of norms and prin- ciples in the area of the human dimension. OSCE documents constitute a wealth of important human rights commitments that have marked the Organization as a leading innovator in this field. It is hoped that the present publication will further promote the knowledge as well as the implementation of the many, often very detailed commitments that the OSCE participating States have entered into in the sphere of human rights and fundamental freedoms, the rule of law, and democracy.

OSCE Human Dimension Commitments xxiii OSCE Documents Referred to in This Compilation Final Act of the Conference on Security and Co-operation in Europe, Helsinki, 1 August 1975 (hereafter referred to as Helsinki 1975)

Concluding Document of Madrid — The Second Follow-up Meeting, Madrid, 6 Sep- tember 1983 (hereafter referred to as Madrid 1983)

Concluding Document of Vienna — The Third Follow-up Meeting, Vienna, 15 January 1989 (hereafter referred to as Vienna 1989)

Document of the Copenhagen Meeting of the Conference on the Human Dimension of the CSCE, Copenhagen, 29 June 1990 (hereafter referred to as Copenhagen 1990)

Charter of Paris for a New Europe/Supplementary Document to give effect to certain provisions contained in the Charter of Paris for a New Europe, Paris, 21 November 1990 (hereafter referred to as Paris 1990)

Document of the Cracow Symposium on the Cultural Heritage of the CSCE Participat- ing States, Cracow, 6 June 1991 (hereafter referred to as Cracow 1991)

Report of the CSCE Meeting of Experts on National Minorities, Geneva, 19 July 1991 (hereafter referred to as Geneva 1991)

Document of the Moscow Meeting of the Conference on the Human Dimension of the CSCE, Moscow, 3 October 1991 (hereafter referred to as Moscow 1991)

Document of the Second Meeting of the CSCE Council, Prague, 30-31 January 1992 (hereafter referred to as Prague 1992)

Concluding Document of Helsinki — The Fourth Follow-up Meeting, Helsinki, 10 July 1992 (hereafter referred to as Helsinki 1992)

Document of the Third Meeting of the CSCE Council, Stockholm, 14-15 December 1992 (hereafter referred to as Stockholm 1992)

Document of the Fourth Meeting of the CSCE Council, Rome, 30 November- 1 December 1993 (hereafter referred to as Rome 1993)

OSCE Human Dimension Commitments xxv OSCE Documents Referred to in This Compilation

Concluding Document of Budapest, 6 December 1994 (hereafter referred to as Budapest 1994)

Lisbon Document, Lisbon, 3 December 1996 (hereafter referred to as Lisbon 1996)

Document of the Sixth Meeting of the Ministerial Council, Copenhagen, 18-19 December 1997 (hereafter referred to as Copenhagen 1997)

Document of the Seventh Meeting of the Ministerial Council, Oslo, 2-3 December 1998 (hereafter referred to as Oslo 1998)

Istanbul Document, Istanbul, 19 November 1999 (hereafter referred to as Istanbul 1999)

Document of the Eighth Meeting of the Ministerial Council, Vienna, 27-28 November 2000 (hereafter referred to as Vienna 2000)

Document of the Ninth Meeting of the Ministerial Council, Bucharest, 3-4 December 2001 (hereafter referred to as Bucharest 2001)

Document of the Tenth Meeting of the Ministerial Council, Porto, 6-7 December 2002 (hereafter referred to as Porto 2002)

Document of the Eleventh Meeting of the Ministerial Council, Maastricht, 1-2 December 2003 (hereafter referred to as Maastricht 2003)

Document of the Twelfth Meeting of the Ministerial Council, Sofia, 6-7 December 2004 (hereafter referred to as Sofia 2004)

xxvi OSCE Human Dimension Commitments  I. General Provisions Related to the Human Dimension 1. An Introduction to the Human Dimension

1.1 The Nature and Importance of the Human Dimension

Helsinki 1975 (Questions Relating to Security in Europe: 1.(a) Declaration on Principles Guiding Relations between Participating States; Principles VII-IX) The participating States recognize the universal significance of human rights and fun- damental freedoms, respect for which is an essential factor for the peace, justice and well-being necessary to ensure the development of friendly relations and co-operation among themselves as among all States.

(…)

They will endeavour, in developing their co-operation as equals, to promote mutual understanding and confidence, friendly and good-neighbourly relations among them- selves, international peace, security and justice. They will equally endeavour, in devel- oping their cooperation, to improve the well-being of peoples and contribute to the ful- filment of their aspirations through, inter alia, the benefits resulting from increased mutual knowledge and from progress and achievement in the economic, scientific, tech- nological, social, cultural and humanitarian fields. They will take steps to promote con- ditions favourable to making these benefits available to all; they will take into account the interest of all in the narrowing of differences in the levels of economic development, and in particular the interest of developing countries throughout the world.

Copenhagen 1990 (Preamble) The participating States express their conviction that full respect for human rights and fundamental freedoms and the development of societies based on pluralistic democracy and the rule of law are prerequisites for progress in setting up the lasting order of peace, security, justice and co-operation that they seek to establish in Europe.

OSCE Human Dimension Commitments  An Introduction to the Human Dimension pa rt I

I

(1) The participating States express their conviction that the protection and promotion of human rights and fundamental freedoms is one of the basic purposes of government, and reaffirm that the recognition of these rights and freedoms constitutes the founda- tion of freedom, justice and peace.

(…)

V

(41) The participating States reaffirm their commitment to the human dimension of the CSCE and emphasize its importance as an integral part of a balanced approach to secu- rity and co-operation in Europe (…)

Paris 1990 (A New Era of Democracy, Peace and Unity) We declare our respect for human rights and fundamental freedoms to be irrevocable (...)

Helsinki 1992 (Summit Declaration) 6. We welcome the commitment of all participating States to our shared values. Respect for human rights and fundamental freedoms, including the rights of persons belonging to national minorities, democracy, the rule of law, economic liberty, social justice and environmental responsibility are our common aims. They are immutable

(…)

7. We reaffirm the validity of the guiding principles and common values of the Helsinki Final Act and the Charter of Paris, embodying responsibilities of States towards each other and of governments towards their people. These are the collective conscience of our community.

(…)

21. Our approach is based on our comprehensive concept of security as initiated in the Final Act.

This concept relates the maintenance of peace to the respect for human rights and fun- damental freedoms. It links economic and environmental solidarity and co-operation with peaceful inter-State relations. This is equally valid in managing change as it was necessary in mitigating confrontation.

Section VI: The Human Dimension

(2) The participating States express their strong determination to ensure full respect for human rights and fundamental freedoms, to abide by the rule of law, to promote the

 OSCE Human Dimension Commitments pa rt I The Nature and Importance of the Human Dimension

principles of democracy and, in this regard, to build, strengthen and protect democratic institutions, as well as to promote tolerance throughout society.

Budapest 1994 (Summit Declaration) 14. We confirm the significance of the Human Dimension in all the activities of the CSCE. Respect for human rights and fundamental freedoms, democracy and the rule of law is an essential component of security and co-operation in the CSCE region. It must remain a primary goal of CSCE action (…) We underline the importance of human con- tacts in overcoming the legacy of old divisions.

Budapest 1994 (Decisions: VIII. The Human Dimension) 2. Human rights and fundamental freedoms, the rule of law and democratic institutions are the foundations of peace and security, representing a crucial contribution to con- flict prevention, within a comprehensive concept of security. The protection of human rights, including the rights of persons belonging to national minorities, is an essential foundation of democratic civil society. Neglect of these rights has, in severe cases, con- tributed to extremism, regional instability and conflict (…)

Istanbul 1999 (Charter for European Security: II. Our Common Foundations) 7. We reaffirm our full adherence to the Charter of the United Nations, and to the Hel- sinki Final Act, the Charter of Paris and all other OSCE documents to which we have agreed. These documents represent our common commitments and are the foundation for our work (…) They established clear standards for participating States’ treatment of each other and of all individuals within their territories (…) Their implementation in good faith is essential for relations between States, between governments and their peo- ples, as well as between the organizations of which they are members (…) We regard these commitments as our common achievement (…)

(…)

9. We will build our relations in conformity with the concept of common and compre- hensive security, guided by equal partnership, solidarity and transparency. The security of each participating State is inseparably linked to that of all others. We will address the human, economic, political and military dimensions of security as an integral whole.

Porto 2002 (Ministerial Declaration) 3. (…) our Organization must develop new responses to the changing nature of the threats to our security, embracing and enhancing all three dimensions of our compre- hensive approach. Our efforts to promote peace and stability must go hand in hand with our determination to ensure full respect for human rights, fundamental freedoms and the rule of law, and to reinforce the conditions essential for sustainable develop- ment in all our States.

OSCE Human Dimension Commitments  An Introduction to the Human Dimension pa rt I

Maastricht 2003 (I. OSCE Strategy to Address Threats to Security and Stability in the Twenty-First Century) 4. Respect for human rights and fundamental freedoms, democracy and the rule of law is at the core of the OSCE’s comprehensive concept of security. Strong democratic insti- tutions and the rule of law play an important role in preventing threats from arising. Weak governance, and a failure by States to secure adequate and functioning demo- cratic institutions that can promote stability, may in themselves constitute a breeding ground for a range of threats. Equally, systematic violations of human rights and funda- mental freedoms, including the rights of persons belonging to national minorities, can give rise to a wide range of potential threats.

(…)

8. Against this background, it is clear that the OSCE’s comprehensive approach to secu- rity, covering the politico-military, economic and environmental and human dimen- sions retains its full validity and should be maintained and further strengthened.

9. (…) Non-compliance with international law and with OSCE norms and principles, as well as a range of factors within the politico-military, economic and environmental and human dimensions lie behind the immediate causes of violent conflict.

1.2 The Human Dimension as a Matter of Direct and Legitimate International Concern

Moscow 1991 (Preamble) The participating States emphasize that issues relating to human rights, fundamen- tal freedoms, democracy and the rule of law are of international concern, as respect for these rights and freedoms constitutes one of the foundations of the international order. They categorically and irrevocably declare that the commitments undertaken in the field of the human dimension of the CSCE are matters of direct and legitimate con- cern to all participating States and do not belong exclusively to the internal affairs of the State concerned.

Lisbon 1996 (Declaration on a Common and Comprehensive Security Model for Europe for the Twenty-First Century) 5. We recognize that, within the OSCE, States are accountable to their citizens and responsible to each other for their implementation of OSCE commitments.

Istanbul 1999 (Charter for European Security: II. Our Common Foundations) 7. (…) All OSCE commitments, without exception, apply equally to each participating State (…) We regard these commitments as our common achievement and therefore consider them to be matters of immediate and legitimate concern to all participating States.

 OSCE Human Dimension Commitments 2. Implementation of Commitments

2.1 The Obligation to Implement

Helsinki 1975 (Questions relating to Security in Europe: 1.(a) Declaration on Principles Guiding Relations between Participating States – Principles VII-X) [The participating States] (…) will constantly respect these rights and freedoms in their mutual relations and will endeavour jointly and separately, including in co-operation with the United Nations, to promote universal and effective respect for them.

(…)

(…) In exercising their sovereign rights, including the right to determine their laws and regulations, they will conform with their legal obligations under international law; they will furthermore pay due regard to and implement the provisions in the Final Act of the Conference on Security and Cooperation in Europe.

(…)

All the principles set forth above are of primary significance and, accordingly, they will be equally and unreservedly applied, each of them being interpreted taking into account the others.

The participating States express their determination fully to respect and apply these principles, as set forth in the present Declaration, in all aspects, to their mutual rela- tions and cooperation in order to ensure to each participating State the benefits result- ing from the respect and application of these principles by all.

Madrid 1983 (Questions Relating to Security in Europe: Preamble) The participating States express their determination

(…)

OSCE Human Dimension Commitments  Implementation of Commitments pa rt I

• to fulfil consistently all the provisions under the Final Act and, in particular, strictly and unreservedly to respect and put into practice all the ten principles contained in the Declaration on Principles Guiding Relations between Participating States, irre- spective of their political, economic or social systems, as well as of their size, geo- graphical location or level of economic development (…)

Madrid 1983 (Questions Relating to Security in Europe: Principles) The participating States stress their determination to promote and encourage the effec- tive exercise of human rights and fundamental freedoms, all of which derive from the inherent dignity of the human person and are essential for his free and full development and to assure constant and tangible progress in accordance with the Final Act, aiming at further and steady development in this field in all participating States, irrespective of their political, economic and social systems.

Paris 1990 (A New Era of Democracy, Peace and Unity) We declare our respect for human rights and fundamental freedoms to be irrevocable. We will fully implement and build upon the provisions relating to the human dimen- sion of the CSCE.

Moscow 1991 (Preamble) The participating States (…) express their determination to fulfil all of their human dimension commitments and to resolve by peaceful means any related issue, individu- ally and collectively, on the basis of mutual respect and co-operation (…)

Helsinki 1992 (Summit Declaration) 6. (…) Adherence to our commitments provides the basis for participation and co-oper- ation in the CSCE and a cornerstone for further development of our societies.

Istanbul 1999 (Charter for European Security: II. Our Common Foundations) 7. We reaffirm our full adherence to the Charter of the United Nations, and to the Hel- sinki Final Act, the Charter of Paris and all other OSCE documents to which we have agreed. These documents represent our common commitments and are the foundation for our work (…) All OSCE commitments, without exception, apply equally to each par- ticipating State. Their implementation in good faith is essential for relations between States, between governments and their peoples, as well as between the organizations of which they are members. Participating States are accountable to their citizens and responsible to each other for their implementation of their OSCE commitments. We regard these commitments as our common achievement and therefore consider them to be matters of immediate and legitimate concern to all participating States.

 OSCE Human Dimension Commitments pa rt I Methods of Implementation

2.2 Methods of Implementation

2.2.1 General Provisions, Including Human Rights Education Helsinki 1975 (Follow-up to the Conference) The participating States,

(…)

1. Declare their resolve, in the period following the Conference, to pay due regard to and implement the provisions of the Final Act of the Conference:

(a) unilaterally, in all cases which lend themselves to such action;

(b) bilaterally, by negotiations with other participating States;

(c) multilaterally, by meetings of experts of the participating States, and also within the framework of existing international organizations, such as the United Nations Eco- nomic Commission for Europe and UNESCO, with regard to educational, scientific and cultural co-operation;

2. Declare furthermore their resolve to continue the multilateral process initiated by the Conference:

(a) by proceeding to a thorough exchange of views both on the implementation of the provisions of the Final Act and of the tasks defined by the Conference (…)

(…)

The text of this Final Act will be published in each participating State, which will dis- seminate it and make it known as widely as possible.

Madrid 1983 (Questions Relating to Security in Europe: Principles) They reaffirm their determination fully to respect and apply these principles and accord- ingly, to promote by all means, both in law and practice, their increased effectiveness. They consider that one such means could be to give legislative expression - in forms appropriate to practices and procedures specific to each country - to the ten principles set forth in the Final Act.

(…)

They reaffirm the particular significance of the Universal Declaration of Human Rights, the international Covenants on Human Rights and other relevant international instru- ments of their joint and separate efforts to stimulate and develop universal respect for human rights and fundamental freedoms; they call on all participating States to act in conformity with those international instruments and on those participating States, which have not yet done so, to consider the possibility of acceding to the covenants.

OSCE Human Dimension Commitments  Implementation of Commitments pa rt I

Copenhagen 1990 (5) [The participating States] solemnly declare that among those elements of justice which are essential to the full expression of the inherent dignity and of the equal and inalienable rights of all human beings are the following:

(…)

(5.21) - in order to supplement domestic remedies and better to ensure that the partici- pating States respect the international obligations they have undertaken, the participat- ing States will consider acceding to a regional or global international convention con- cerning the protection of human rights, such as the European Convention on Human Rights or the Optional Protocol to the International Covenant on Civil and Political Rights, which provide for procedures of individual recourse to international bodies.

Moscow 1991 (42) The participating States

(42.1) - affirm that human rights education is fundamental and that it is therefore essen- tial that their citizens are educated on human rights and fundamental freedoms and the commitment to respect such rights and freedoms in domestic legislation and interna- tional instruments to which they may be parties;

(42.2) - recognize that effective human rights education contributes to combating intol- erance, religious, racial and ethnic prejudice and hatred, including against Roma, xeno- phobia and anti-semitism;

(42.3) - will encourage their competent authorities responsible for education pro- grammes to design effective human rights related curricula and courses for students at all levels, particularly students of law, administration and social sciences as well as those attending military, police and public service schools;

(42.4) - will make information on all CSCE human dimension provisions available to their educators;

(42.5) - will encourage organizations and educational establishments to co-operate in drawing up and exchanging human rights programmes at the national as well as the international level;

(42.6) - will seek to ensure that activities undertaken with a view to promoting human rights education in the broader sense take into account experience, programmes and forms of co-operation within existing international governmental and non-governmen- tal bodies, such as the United Nations and the Council of Europe.

10 OSCE Human Dimension Commitments pa rt I Methods of Implementation

2.2.2 Review of Implementation Helsinki 1992 (Decisions: I. Strengthening CSCE Institutions and Structures) (26) Thorough review of the implementation of CSCE commitments will continue to play a prominent role in CSCE activities, thus enhancing co-operation among partici- pating States.

(27) Reviews of implementation will be held regularly at review conferences as well as at special meetings convened for this purpose at the ODIHR and the CPC (…) as provided for in the relevant CSCE documents.

(28) These reviews of implementation will be of a co-operative nature, comprehensive in scope and at the same time able to address specific issues.

(29) The participating States will be invited to offer contributions on their implemen- tation experience, with particular reference to difficulties encountered, and to pro- vide their views of implementation throughout the CSCE area. Participating States are encouraged to circulate descriptions of contributions in advance of the meeting.

(30) Reviews should offer the opportunity to identify action which may be required to address problems. Meetings at which reviews of implementation take place may draw to the attention of the CSO any suggestions for measures to improve implementation which they deem advisable.

Budapest 1994 (Summit Declaration) 14. (…) Periodic reviews of implementation of our commitments, fundamental through- out the CSCE, are critical in the Human Dimension.

Budapest 1994 (Decisions: VIII. The Human Dimension) 5. Building on the implementation review structures in the Helsinki Document 1992 and to improve human dimension implementation, the participating States will use the Permanent Council for an enhanced dialogue on the human dimension and for possible action in cases of non-implementation. To this end, the participating States decide that human dimension issues will be regularly dealt with by the Permanent Council (…)

6. They encourage the Chairman-in-Office to inform the Permanent Council of serious cases of alleged non-implementation of human dimension commitments, including on the basis of information from the ODIHR, reports and recommendations of the High Commissioner on National Minorities (HCNM), or reports of the head of a CSCE mis- sion and information from the State concerned.

Istanbul 1999 (Charter for European Security: III. Our Common Response) 14. (…) We individually confirm our willingness to comply fully with our commitments. We also have a joint responsibility to uphold OSCE principles (…) We will co-operate in a spirit of solidarity and partnership in a continuing review of implementation (…)

OSCE Human Dimension Commitments 11 Implementation of Commitments pa rt I

2.2.3 Election Observation Copenhagen 1990 (8) The participating States consider that the presence of observers, both foreign and domestic, can enhance the electoral process for States in which elections are taking place. They therefore invite observers from any other CSCE participating States and any appropriate private institutions and organizations who may wish to do so to observe the course of their national election proceedings, to the extent permitted by law. They will also endeavour to facilitate similar access for election proceedings held below the national level. Such observers will undertake not to interfere in the electoral proceed- ings.

(…)

(12) The participating States, wishing to ensure greater transparency in the implemen- tation of the commitments undertaken in the Vienna Concluding Document under the heading of the human dimension of the CSCE, decide to accept as a confidence build- ing measure the presence of observers sent by participating States and representatives of non-governmental organizations and other interested persons at proceedings before courts as provided for in national legislation and international law; it is understood that proceedings may only be held in camera in the circumstances prescribed by law and consistent with obligations under international law and international commitments.

2.2.4 Human Dimension Mechanisms and Other Relevant Mechanisms Istanbul 1999 (Charter for European Security: III. Our Common Response) 14. (…) We individually confirm our willingness to comply fully with our commitments. We also have a joint responsibility to uphold OSCE principles. We (…) stand ready to use OSCE instruments, tools and mechanisms (…) We will co-operate in a spirit of soli- darity and partnership in a continuing review of implementation.

A. Vienna Mechanism Vienna 1989 (Human Dimension of the CSCE) The participating States,

Recalling the undertakings entered into in the Final Act and in other CSCE documents concerning respect for all human rights and fundamental freedoms, human contacts and other issues of a related humanitarian character,

Recognizing the need to improve the implementation of their CSCE commitments and their co-operation in these areas which are hereafter referred to as the human dimen- sion of the CSCE,

Have, on the basis of the principles and provisions of the Final Act and of other relevant CSCE documents, decided:

12 OSCE Human Dimension Commitments pa rt I Methods of Implementation

1. to exchange information and respond to requests for information and to represen- tations made to them by other participating States on questions relating to the human dimension of the CSCE. Such communications may be forwarded through diplomatic channels or be addressed to any agency designated for these purposes;

2. to hold bilateral meetings with other participating States that so request, in order to examine questions relating to the human dimension of the CSCE, including situations and specific cases, with a view to resolving them. The date and place of such meetings will be arranged by mutual agreement through diplomatic channels;

3. that any participating State which deems it necessary may bring situations and cases in the human dimension of the CSCE, including those which have been raised at the bilateral meetings described in paragraph 2, to the attention of other participating States through diplomatic channels;

4. that any participating State which deems it necessary may provide information on the exchanges of information and the responses to its requests for information and to representations (paragraph 1) and on the results of the bilateral meetings (paragraph 2), including information concerning situations and specific cases, at the meetings of the Conference on the Human Dimension as well as at the main CSCE Follow-up Meeting.

(…)

Copenhagen 1990 (42) The participating States recognize the need to enhance further the effectiveness of the procedures described in paragraphs 1 to 4 of the section on the human dimension of the CSCE of the Vienna Concluding Document and with this aim decide

(42.1) - to provide in as short a time as possible, but no later than four weeks, a written response to requests for information and to representations made to them in writing by other participating States under paragraph 1;

(42.2) - that the bilateral meetings, as contained in paragraph 2, will take place as soon as possible, as a rule within three weeks of the date of the request;

(42.3) - to refrain, in the course of a bilateral meeting held under paragraph 2, from raising situations and cases not connected with the subject of the meeting, unless both sides have agreed to do so.

B. Moscow Mechanism Moscow 1991 (Preamble & Section I – as modified by Rome 1993) In order to strengthen and expand the human dimension mechanism described in the section on the human dimension of the CSCE in the Concluding Document of the Vienna Meeting and to build upon and deepen the commitments set forth in the Doc- ument of the Copenhagen Meeting of the Conference on the Human Dimension of the CSCE, the participating States adopt the following:

OSCE Human Dimension Commitments 13 Implementation of Commitments pa rt I

(…)

(1) The participating States emphasize that the human dimension mechanism described in paragraphs 1 to 4 of the section on the human dimension of the CSCE in the Vienna Concluding Document constitutes an essential achievement of the CSCE process, hav- ing demonstrated its value as a method of furthering respect for human rights, fun- damental freedoms, democracy and the rule of law through dialogue and co-opera- tion and assisting in the resolution of specific relevant questions. In order to improve further the implementation of the CSCE commitments in the human dimension, they decide to enhance the effectiveness of this mechanism and to strengthen and expand it as outlined in the following paragraphs.

(2) The participating States amend paragraphs 42.1 and 42.2 of the Document of the Copenhagen Meeting to the effect that they will provide in the shortest possible time, but no later than ten days, a written response to requests for information and to rep- resentations made to them in writing by other participating States under paragraph 1 of the human dimension mechanism. Bilateral meetings, as referred to in paragraph 2 of the human dimension mechanism, will take place as soon as possible, and as a rule within one week of the date of the request.

(3) A resource list comprising up to six experts appointed by each participating State will be established without delay at the CSCE Institution*. The experts will be eminent persons, including where possible experts with experience related to national minor- ity issues, preferably experienced in the field of the human dimension, from whom an impartial performance of their functions may be expected.

The experts will be appointed for a period of three to six years at the discretion of the appointing State, no expert serving more than two consecutive terms. Within four weeks after notification by the CSCE Institution of the appointment, any participating State may make reservations regarding no more than two experts to be appointed by another participating state. In such case, the appointing State may, within four weeks of being notified of such reservations, reconsider its decision and appoint another expert or experts; if it confirms the appointment originally intended, the expert concerned cannot take part in any procedure with respect to the State having made the reservation without the latter’s express consent.

The resource list will become operational as soon as 45 experts have been appointed.

(4) A participating State may invite the assistance of a CSCE mission, consisting of up to three experts, to address or contribute to the resolution of questions in its territory relating to the human dimension of the CSCE. In such case, the State will select the per- son or persons concerned from the resource list. The mission of experts will not include the participating State’s own nationals or residents or any of the persons it appointed to the resource list or more than one national or resident of any particular State.

* The Council will take the decision on the institution.

14 OSCE Human Dimension Commitments pa rt I Methods of Implementation

The inviting State will inform without delay the CSCE Institution when a mission of experts is established, which in turn will notify all participating States. The CSCE insti- tutions will also, whenever necessary, provide appropriate support to such a mission.

(5) The purpose of a mission of experts is to facilitate resolution of a particular question or problem relating to the human dimension of the CSCE. Such mission may gather the information necessary for carrying out its tasks and, as appropriate, use its good offices and mediation services to promote dialogue and co-operation among interested parties. The State concerned will agree with the mission on the precise terms of reference and may thus assign any further functions to the mission of experts, inter alia, fact-finding and advisory services, in order to suggest ways and means of facilitating the observance of CSCE commitments.

(6) The inviting State will co-operate fully with the mission of experts and facilitate its work. It will grant the mission all the facilities necessary for the independent exercise of its functions. It will, inter alia, allow the mission, for the purpose of carrying out its tasks, to enter its territory without delay, to hold discussions and to travel freely therein, to meet freely with officials, nongovernmental organizations and any group or person from whom it wishes to receive information. The mission may also receive information in confidence from any individual, group or organization on questions it is addressing. The members of such missions will respect the confidential nature of their task.

The participating States will refrain from any action against persons, organizations or institutions on account of their contact with the mission of experts or of any publicly available information transmitted to it. The inviting State will comply with any request from a mission of experts to be accompanied by officials of that State if the mission con- siders this to be necessary to facilitate its work or guarantee its safety.

(7) The mission of experts will submit its observations to the inviting State as soon as possible, preferably within three weeks after the mission has been established. The inviting State will transmit the observations of the mission, together with a description of any action it has taken or intends to take upon it, to the other participating States via the CSCE Institution no later than two weeks after the submission of the observations.

These observations and any comments by the inviting State may be discussed by the Committee of Senior Officials, which may consider any possible follow-up action. The observations and comments will remain confidential until brought to the attention of the Senior Officials. Before the circulation of the observations and any comments, no other mission of experts may be appointed for the same issue.

(8) Furthermore, one or more participating States, having put into effect paragraphs 1 or 2 of the human dimension mechanism, may request that the CSCE Institution inquire of another participating State whether it would agree to invite a mission of

OSCE Human Dimension Commitments 15 Implementation of Commitments pa rt I

experts to address a particular, clearly defined question on its territory relating to the human dimension of the CSCE. If the other participating State agrees to invite a mis- sion of experts for the purpose indicated, the procedure set forth in paragraphs 4 to 7 will apply.

(9) If a participating State (a) has directed an enquiry under paragraph 8 to another par- ticipating State and that State has not established a mission of experts within a period of ten days after the enquiry has been made, or (b) judges that the issue in question has not been resolved as a result of a mission of experts, it may, with the support of at least five other participating States, initiate the establishment of a mission of up to three CSCE rapporteurs. Such a decision will be addressed to the CSCE Institution, which will notify without delay the State concerned as well as all the other participat- ing States.

(10) The requesting State or States may appoint one person from the resource list to serve as a CSCE rapporteur. The requested State may, if it so chooses, appoint a further rapporteur from the resource list within six days after notification by the CSCE Insti- tution of the appointment of the rapporteur. In such case the two designated rappor- teurs, who will not be nationals or residents of, or persons appointed to the resource list by any of the States concerned, will by common agreement and without delay appoint a third rapporteur from the resource list. In case they fail to reach agreement within eight days, a third rapporteur who will not be a national or resident of, or a person appointed to the resource list by any of the States concerned, will be appointed from the resource list by the ranking official of the CSCE body designated by the Council. The provisions of the second part of paragraph 4 and the whole of paragraph 6 also apply to a mission of rapporteurs.

(11) The CSCE rapporteur(s) will establish the facts, report on them and may give advice on possible solutions to the question raised. The report of the rapporteur(s), containing observations of facts, proposals or advice, will be submitted to the participating State or States concerned and, unless all the States concerned agree otherwise, to the CSCE Institution no later than two weeks after the last rapporteur has been appointed. The requested State will submit any observations on the report to the CSCE Institution, unless all the States concerned agree otherwise, no later than two weeks after the sub- mission of the report.

The CSCE Institution will transmit the report, as well as any observations by the requested State or any other participating State, to all participating States without delay. The report will be placed on the agenda of the next regular meeting of the Committee of Senior Officials or of the Permanent Committee of the CSCE, which may decide on any possible follow-up action. The report will remain confidential until after that meet- ing of the Committee. Before the circulation of the report no other rapporteur may be appointed for the same issue.

(12) If a participating State considers that a particularly serious threat to the fulfilment of the provisions of the CSCE human dimension has arisen in another participating

16 OSCE Human Dimension Commitments pa rt I Methods of Implementation

State, it may, with the support of at least nine other participating States, engage the pro- cedure set forth in paragraph 10. The provisions of paragraph 11 will apply.

(13) Upon the request of any participating State the Committee of Senior Officials or the Permanent Committee of the CSCE may decide to establish a mission of experts or of CSCE rapporteurs. In such case the Committee will also determine whether to apply the appropriate provisions of the preceding paragraphs.

(14) The participating State or States that have requested the establishment of a mission of experts or rapporteurs will cover the expenses of that mission. In case of the appoint- ment of experts or rapporteurs pursuant to a decision of the Committee of Senior Offi- cials or of the Permanent Committee of the CSCE, the expenses will be covered by the participating States in accordance with the usual scale of distribution of expenses. These procedures will be reviewed by the Helsinki Follow-up Meeting of the CSCE.

(15) Nothing in the foregoing will in any way affect the right of participating States to raise within the CSCE process any issue relating to the implementation of any CSCE commitment, including any commitment relating to the human dimension of the CSCE.

(16) In considering whether to invoke the procedures in paragraphs 9 and 10 or 12 regarding the case of an individual, participating States should pay due regard to whether that individual’s case is already sub judice in an international judicial proce- dure.

Prague 1992 (Document on Further Development of CSCE Institutions and Structures: III. Human Dimension) 14. The Office for Democratic Institutions and Human Rights is designated as the CSCE institution charged with the tasks in connection with expert and rapporteur missions according to the Document of the Moscow Meeting of the Conference on the Human Dimension of the CSCE.

Helsinki 1992 (Decisions: VI. The Human Dimension) (5) Under the general guidance of the CSO (…) the ODIHR will, as the main institution of the Human Dimension:

(5a) assist the monitoring of implementation of commitments in the Human Dimen- sion by:

• serving as a venue for bilateral meetings under paragraph 2 and as a channel for infor- mation under paragraph 3 of the Human Dimension Mechanism as set out in the Vienna Concluding Document;

(…)

(5b) act as a clearing-house for information on:

OSCE Human Dimension Commitments 17 Implementation of Commitments pa rt I

• a state of public emergency according to paragraph 28.10 of the Document of the Mos- cow Meeting of the Conference on the Human Dimension;

(…)

(7) In order to align the Human Dimension Mechanism with present CSCE structures and institutions the participating States decide that:

Any participating State which deems it necessary may provide information on situ- ations and cases which have been the subject of requests under paragraphs 1 or 2 of the chapter entitled the "Human Dimension of the CSCE" of the Vienna Concluding Document or on the results of those procedures, to the participating States through the ODIHR — which can equally serve as a venue for bilateral meetings under para- graph 2 — or diplomatic channels. Such information may be discussed at Meetings of the CSO, at implementation meetings on Human Dimension issues and review con- ferences (…)

Implementation meetings on Human Dimension issues

(8) Procedures concerning the covering of expenses of expert and rapporteur missions of the Human Dimension Mechanism may be considered by the next review conference in the light of experience gained.

(9) Every year in which a review conference does not take place, the ODIHR will organ- ize a three-week meeting at expert-level of all participating States at its seat to review implementation of CSCE Human Dimension commitments. The meeting will perform the following tasks:

(9a) a thorough exchange of views on the implementation of Human Dimension com- mitments, including discussion on the information provided in accordance with para- graph 4 of the Human Dimension Mechanism (…)

Budapest 1994 (Decisions: VIII. The Human Dimension) 5. Building on the implementation review structures in the Helsinki Document 1992 and to improve human dimension implementation, the participating States will use the Permanent Council for an enhanced dialogue on the human dimension and for possi- ble action in cases of non-implementation. To this end, the participating States decide that human dimension issues will be regularly dealt with by the Permanent Council. They will draw more widely on the possibilities offered by the Moscow Mechanism for examining or promoting the solution of questions relating to the human dimension on their territory.

6. They encourage the Chairman-in-Office to inform the Permanent Council of serious cases of alleged non-implementation of human dimension commitments, including on the basis of information from the ODIHR, reports and recommendations of the High Commissioner on National Minorities (HCNM), or reports of the head of a CSCE mis- sion and information from the State concerned.

18 OSCE Human Dimension Commitments pa rt I Methods of Implementation

C. Mechanism to Assist Participating States in Combating Trafficking in Human Beings Maastricht 2003 (Decisions: Decision No. 2/03 on Combating Trafficking in Human Beings) The Ministerial Council,

(…)

With the goal of enhancing the OSCE’s efforts in fighting trafficking in human beings,

(…)

2. Establishes, under the aegis of the Permanent Council, an OSCE mechanism to provide assistance to participating States to combat trafficking in human beings. The mechanism will consist of two parts, complementing the activities of each other: a Spe- cial Representative appointed by the Chairmanship-in-Office, and a special unit in the OSCE Secretariat,

The mechanism is set up to:

(a) Assist OSCE participating States in the implementation of commitments and full usage of recommendations proposed by the OSCE Action Plan to Combat Trafficking in Human Beings;

(b) Ensure co-ordination of OSCE efforts in combating trafficking in human beings across all three dimensions of the OSCE;

(c) Strengthen co-ordination among the relevant authorities of the participating States and between the OSCE and other relevant organizations;

(d) Raise the public and political profile of the combat against trafficking in human beings;

(e) Operate in the whole OSCE area and as appropriate, assist the participating States, in a spirit of co-operation and following consultations with the respective authorities of the relevant participating States in aiming at the implementation of their commitments in combating human trafficking;

(f) Provide and facilitate advice and technical assistance in the field of legislation as well as policy development, together, as necessary, with other OSCE structures engaged in this field;

(g) Be ready to offer advice to senior level authorities representing the legislative, judi- cial, and executive branches in participating States and discuss with them the imple- mentation of the OSCE Action Plan to Combat Trafficking in Human Beings and com- mitments in the field of combating trafficking in human beings. In specific cases call- ing for special attention, seek direct contacts, in an appropriate manner with the par-

OSCE Human Dimension Commitments 19 Implementation of Commitments pa rt I

ticipating State concerned and discuss the provisions of advice and concrete assistance, if needed;

(h) Co-operate with National Rapporteurs or other national mechanisms established by participating States for co-ordinating and monitoring the anti-trafficking activities of State institutions. It will also co-operate with relevant Non-Governmental Organi- zations of the participating States. Furthermore, it will assume responsibility within the OSCE for hosting and facilitating meetings for the exchange of information and experi- ence between national co-ordinators, representatives designated by participating States, or experts on combating trafficking in human beings;

(i) Closely co-operate and co-ordinate with the Office for Democratic Institutions and Human Rights (ODIHR) and other OSCE Institutions, the Secretary General, rele- vant structures of the Secretariat including the Office of the Co-ordinator for OSCE Economic and Environmental Activities (OCEEA), the Strategic Police Matters Unit (SPMU), the Senior Gender Adviser, as well as, where appropriate, the OSCE field oper- ations. The mechanism will draw on the expertise within these OSCE structures, and will see that duplication is avoided. Participate when appropriate in the work of the Informal Working Group on Gender Equality and Anti-Trafficking in Human Beings;

(j) Co-operate and co-ordinate with relevant international actors such as the United Nations Office on Drugs and Crime, the United Nations High Commissioner for Ref- ugees, the United Nations High Commissioner for Human Rights, the United Nations Children’s Fund, the International Labour Organization, as well as the International Organization for Migration, the International Centre for Migration Policy Develop- ment, the European Union, the Council of Europe, the Stability Pact Task Force on Trafficking in Human Beings, the Council of Baltic Sea States, the Southeast European Co-operative Initiative, Interpol and Europol;

3. Affirms that the Special Representative will be politically accountable to, and will report regularly and when appropriate to the Permanent Council. It will function in accordance with Decision No. 8 of the Tenth Meeting of the Ministerial Council in Porto;

4. Calls on the Chairmanship-in-Office to appoint as Special Representative a promi- nent personality with relevant expertise, according to OSCE procedures, following con- sultations with participating States through the Preparatory Committee on his or her mandate (…)

5. Tasks the Permanent Council to establish the above-mentioned special unit, as a part of the OSCE Secretariat, with contracted or seconded staff. The Special Representative will have the capacity of the special unit at his or her full disposal in order to effectively implement the above-mentioned tasks (…)

20 OSCE Human Dimension Commitments pa rt I Methods of Implementation

D. Counter-Terrorism Network Maastricht 2003 (Decisions: Decision No. 6/03 on Terms of Reference for the OSCE Counter-Terrorism Network) The Ministerial Council,

Decides to establish the OSCE Counter-Terrorism Network (CTN) in accordance with the terms of reference for the Network contained in the annex to this decision.

(Annex to Decision No. 6/03: OSCE Counter-Terrorism Network: Terms of Reference)

The primary purpose of the OSCE Counter-Terrorism Network (CTN) is to promote the strengthening of co-ordination of counter-terrorism measures and information-shar- ing between OSCE participating States. In particular, it aims to strengthen the liaison between the delegations of participating States, counter-terrorism officials in capitals and the OSCE Action against Terrorism Unit (ATU).* The Network facilitates timely exchanges of information on counter-terrorism programmes, training and legal devel- opments initiated by the OSCE and participating States, as well as on open-source anal- yses concerning trends in terrorist phenomena. The primary emphasis will be placed on supporting and supplementing the work of the United Nations Security Council Coun- ter-Terrorism Committee in implementing Security Council resolution 1373. The CTN is not intended to be a conduit for intelligence or other sensitive information, nor does it seek to duplicate functions of other international and regional law-enforcement net- works.

Each government will designate a principal liaison to serve, through its OSCE delega- tion, as the principal contact point with the ATU on counter-terrorism matters. The principal liaison will ensure that communications from the ATU are forwarded to the appropriate government authorities in the capital concerned, and that the ATU and del- egations are similarly informed in a timely manner of relevant developments in the par- ticipating State. In order to foster co-ordination, communications through the Counter- Terrorism Network passing between the ATU and a principal liaison will in principle be transmitted through the OSCE delegation of the State concerned.

Responsibilities of the ATU

1. Inform participating States of bilateral as well as multilateral training opportuni- ties related to counter-terrorism matters, and work with principal liaisons to take full advantage of such programmes.

2. Co-ordinate and facilitate OSCE counter-terrorism activities, including capacity- building assistance programmes, training and contingency-preparedness workshops, with a view to effectively utilizing resources and averting duplication. * The United Nations Counter-Terrorism Committee (CTC) has supported the development of such regional networks to strengthen co-operation and co-ordination. The Secretariat of the Inter-American Committee against Terrorism (CICTE), within the Organization of American States, has already developed a regional hemispheric network of national points of contact. The ATU is grateful for and acknowledges CICTE’s advice and assistance in developing the OSCE Counter-Terrorism Network.

OSCE Human Dimension Commitments 21 Implementation of Commitments pa rt I

3. Respond to information and requests for action from principal liaisons in a timely manner.

4. Ensure that, through the delegations, the principal liaisons are kept fully informed of developments regarding significant counter-terrorism matters that affect the OSCE region, by means of regular distribution by email of an ATU newsletter and of regular updates of the OSCE ATU home page.

5. Co-ordinate with the principal liaison, through the delegation concerned, when an OSCE ATU official travels to a participating State in connection with terrorism-related matters.

Responsibilities of principal liaisons

1. Ensure that communications from the ATU reach the appropriate government offices, and that responses to the ATU are forwarded in a timely manner.

2. Provide information to the ATU about significant national developments regarding action to combat terrorism, including new counter-terrorism legislation*, counter-ter- rorism training or assistance programmes and examples of national “best practices”.

3. Communicate information on seminars, workshops and conferences related to coun- ter-terrorism concerns that participating States may host, and that are open to outside participation.

4. Serve as the principal co-ordinator for OSCE anti-terrorism seminars, workshops and conferences involving the principal liaison’s participating State.

5. Co-ordinate, prioritize and communicate, on behalf of the participating State con- cerned, training and assistance needs and requests related to counter-terrorism matters that the OSCE might support or facilitate (…)

E. Other Mechanisms Prague 1992 (Document on Further Development of CSCE Institutions and Structures: IV. Safeguarding Human Rights, Democracy and the Rule of Law) 16. The Council decided, in order to develop further the CSCE’s capability to safeguard human rights, democracy and the rule of law through peaceful means, that appropriate action may be taken by the Council or the Committee of Senior Officials, if necessary in the absence of the consent of the State concerned, in cases of clear, gross and uncor- rected violations of relevant CSCE commitments. Such actions would consist of politi- cal declarations or other political steps to apply outside the territory of the State con- cerned. This decision is without prejudice to existing CSCE mechanisms.

* The OSCE ATU relies on official notifications of ratification through the web sites of the relevant depositories of anti-terrorism instruments for the most accurate information on ratification.

22 OSCE Human Dimension Commitments pa rt I Partners in Implementation

Helsinki 1992 (Decisions: I. Strengthening CSCE Institutions and Structures) (22) When dealing with a crisis or a conflict, the Chairman-in-Office may, on his/her own responsibility, designate a personal representative with a clear and precise mandate in order to provide support. The Chairman-in-Office will inform the CSO of the inten- tion to appoint a personal representative and of the mandate. In reports to the Council/ CSO, the Chairman-in-Office will include information on the activities of the personal representative as well as any observations or advice submitted by the latter.

Sofia 2004 (Decisions: Decision No. 12/04 on Tolerance and Non-discrimination) The Ministerial Council

(…)

5. Welcomes the intention of the Chairman-in-Office to appoint, in accordance with Porto Ministerial Council Decision No. 8, three personal representatives as part of the overall fight of the OSCE in combating discrimination and promoting tolerance. The personal representatives will have their costs covered by extra-budgetary contribu- tions.

2.3 Partners in Implementation

2.3.1 Governments; Government Bodies and Institutions Helsinki 1975 (Questions Relating to Security in Europe: 1.(a) Declaration on Principles Guiding Relations between Participating States – Principle IX) [The participating States] (…) confirm that governments, institutions, organizations and persons have a relevant and positive role to play in contributing toward the achieve- ment of these aims of their cooperation.

Copenhagen 1990 (Preamble) [The participating States] recognize that co-operation among themselves, as well as the active involvement of persons, groups, organizations and institutions, will be essential to ensure continuing progress towards their shared objectives.

Moscow 1991 (Preamble) The participating States (…) express their determination to fulfil all of their human dimension commitments and to resolve by peaceful means any related issue, individ- ually and collectively, on the basis of mutual respect and co-operation. In this context they recognize that the active involvement of persons, groups, organizations and insti- tutions is essential to ensure continuing progress in this direction.

OSCE Human Dimension Commitments 23 Implementation of Commitments pa rt I

2.3.2 Governments of Other Countries and International Organizations Helsinki 1992 (Summit Declaration) 7. We reaffirm the validity of the guiding principles and common values of the Helsinki Final Act and the Charter of Paris, embodying responsibilities of States towards each other and of governments towards their people. These are the collective conscience of our community. We recognize our accountability to each other for complying with them. We underline the democratic rights of citizens to demand from their govern- ments respect for these values and standards.

Helsinki 1992 (Decisions: IV. Relations with International Organizations, Relations with Non-Participating States, Role of Non-Governmental Organizations (NGOs)) (1) (…) Successful efforts to build a lasting peaceful and democratic order and to man- age the process of change require more structured and substantive input from groups, individuals, States and organizations outside the CSCE process.

To this end, the participating States have decided as follows:

Relations with international organizations

(2) The participating States, reaffirming their commitments to the Charter of the United Nations as subscribed to by them, declare their understanding that the CSCE is a regional arrangement in the sense of Chapter VIII of the Charter of the United Nations and as such provides an important link between European and global security (…)

(3) Recalling the relevant decisions of the Prague Document, the participating States will improve contact and practical co-operation with appropriate international organi- zations.

(…)

Relations with non-participating Mediterranean States

(7) Recalling the provisions of the Final Act and other CSCE relevant documents and consistent with established practice, the non-participating Mediterranean States will continue to be invited to contribute to CSCE activities.

(…)

Relations with non-participating States

(9) (…) the participating States intend to deepen their co-operation and develop a sub- stantial relationship with non-participating States…which display an interest in the CSCE, share its principles and objectives, and are actively engaged in European co- operation through relevant organizations.

24 OSCE Human Dimension Commitments pa rt I Partners in Implementation

Lisbon 1996 (Declaration on a Common and Comprehensive Security Model for Europe for the Twenty-First Century) 5. We recognize that, within the OSCE, States are (…) responsible to each other for their implementation of OSCE commitments.

Istanbul 1999 (Charter for European Security: III. Our Common Response) 14. (…) Today we commit ourselves to joint measures based on co-operation, both in the OSCE and through those organizations of which we are members, in order to offer assistance to participating States to enhance their compliance with OSCE principles and commitments. We will strengthen existing co-operative instruments and develop new ones in order to respond efficiently to requests for assistance from participating States (…)

Maastricht 2003 (OSCE Strategy to Address Threats to Security and Stability in the Twenty-First Century) Co-operation with other international organizations and institutions

52. (…) The OSCE’s interaction with other organizations and institutions is based on the Platform for Co-operative Security. In it, participating States have pledged them- selves to seek to develop political and operational coherence among all the bodies deal- ing with security, both in responding to specific threats and in formulating responses to new threats and challenges (…)

53. Our co-operation with other organizations and institutions currently encompasses political dialogue, co-ordination, and structured co-operation on thematic or regional issues across the OSCE region, based on common values and objectives (…)

54. The OSCE seeks to expand its relations with all organizations and institutions that are concerned with the promotion of comprehensive security within the OSCE area (…)

2.3.3 Individuals, Human Rights Defenders, and Non-governmental Organizations Helsinki 1975 (Questions Relating to Security in Europe: 1.(a) Declaration on Principles Guiding Relations between Participating States – Principle VII) The participating States recognize the universal significance of human rights and fun- damental freedoms (…) They confirm the right of the individual to know and act upon his rights and duties in this field.

(…)

They confirm that (…) organizations and persons have a relevant and positive role to play in contributing toward the achievement of these aims of their cooperation.

OSCE Human Dimension Commitments 25 Implementation of Commitments pa rt I

Madrid 1983 (Questions Relating to Security in Europe: Principles) [The participating States] recall the right of the individual to know and act upon his rights and duties in the field of human rights and fundamental freedoms, as embodied in the Final Act, and will take the necessary action in their respective countries to effec- tively ensure this right.

Vienna 1989 (Questions Relating to Security in Europe: Principles) (12) [The participating States] express their determination to guarantee the effective exercise of human rights and fundamental freedoms (…)

(13) In this context they will

(…)

(13.3) - publish and disseminate the text of the Final Act, of the Madrid Concluding Document and of the present Document as well as those of any relevant international instruments in the field of human rights, in order to ensure the availability of these doc- uments in their entirety, to make them known as widely as possible and to render them accessible to all individuals in their countries, in particular through public library sys- tems;

(13.4) - effectively ensure the right of the individual to know and act upon his rights and duties in this field, and to that end publish and make accessible all laws, regulations and procedures relating to human rights and fundamental freedoms;

(13.5) - respect the right of their citizens to contribute actively, individually or in asso- ciation with others, to the promotion and protection of human rights and fundamen- tal freedoms;

(13.6) - encourage in schools and other educational institutions consideration of the promotion and protection of human rights and fundamental freedoms;

(…)

(13.8) - ensure that no individual exercising, expressing the intention to exercise or seeking to exercise these rights and freedoms or any member of his family, will as a consequence be discriminated against in any manner;

(13.9) - ensure that effective remedies as well as full information about them are avail- able to those who claim that their human rights and fundamental freedoms have been violated; they will, inter alia, effectively apply the following remedies:

• the right of the individual to appeal to executive, legislative, judicial or administrative organs;

26 OSCE Human Dimension Commitments pa rt I Partners in Implementation

• the right to a fair and public hearing within a reasonable time before an independent and impartial tribunal, including the right to present legal arguments and to be repre- sented by legal counsel of one's choice;

• the right to be promptly and officially informed of the decision taken on any appeal, including the legal grounds on which this decision was based. This information will be provided as a rule in writing and, in any event, in a way that will enable the individual to make effective use of further available remedies.

(…)

(26) (…) To that end they will respect the right of persons to observe and promote the implementation of CSCE provisions and to associate with others for this purpose. They will facilitate direct contacts and communication among these persons, organizations and institutions within and between participating States and remove, where they exist, legal and administrative impediments inconsistent with the CSCE provisions. They will also take effective measures to facilitate access to information on the implementation of CSCE provisions and to facilitate the free expression of views on these matters.

Copenhagen 1990 [The participating States] recognize that co-operation among themselves, as well as the active involvement of persons, groups, organizations and institutions, will be essential to ensure continuing progress towards their shared objectives.

(…)

(10) In reaffirming their commitment to ensure effectively the rights of the individual to know and act upon human rights and fundamental freedoms, and to contribute actively, individually or in association with others, to their promotion and protection, the partic- ipating States express their commitment to

(10.1) - respect the right of everyone, individually or in association with others, to seek, receive and impart freely views and information on human rights and fundamental freedoms, including the rights to disseminate and publish such views and information;

(10.2) - respect the rights of everyone, individually or in association with others, to study and discuss the observance of human rights and fundamental freedoms and to develop and discuss ideas for improved protection of human rights and better means for ensur- ing compliance with international human rights standards;

(10.3) - ensure that individuals are permitted to exercise the right to association, includ- ing the right to form, join and participate effectively in non-governmental organizations which seek the promotion and protection of human rights and fundamental freedoms, including trade unions and human rights monitoring groups;

(10.4) - allow members of such groups and organizations to have unhindered access to and communication with similar bodies within and outside their countries and with

OSCE Human Dimension Commitments 27 Implementation of Commitments pa rt I

international organizations, to engage in exchanges, contacts and co-operation with such groups and organizations and to solicit, receive and utilize for the purpose of pro- moting and protecting human rights and fundamental freedoms voluntary financial contributions from national and international sources as provided for by law.

Paris 1990 (A New Era of Democracy, Peace and Unity) We recall the major role that non-governmental organizations, religious and other groups and individuals have played in the achievement of the objectives of the CSCE and will further facilitate their activities for the implementation of the CSCE commit- ments by the participating States. These organizations, groups and individuals must be involved in an appropriate way in the activities and new structures of the CSCE in order to fulfil their important tasks.

Moscow 1991 The participating States (…) express their determination to fulfil all of their human dimension commitments and to resolve by peaceful means any related issue, individ- ually and collectively, on the basis of mutual respect and co-operation. In this context they recognize that the active involvement of persons, groups, organizations and insti- tutions is essential to ensure continuing progress in this direction.

(…)

(43) The participating States will recognize as NGOs those which declare themselves as such, according to existing national procedures, and will facilitate the ability of such organizations to conduct their national activities freely on their territories; to that effect they will

(43.1) - endeavour to seek ways of further strengthening modalities for contacts and exchanges of views between NGOs and relevant national authorities and governmen- tal institutions;

(43.2) - endeavour to facilitate visits to their countries by NGOs from within any of the participating States in order to observe human dimension conditions;

(43.3) - welcome NGO activities, including, inter alia, observing compliance with CSCE commitments in the field of the human dimension;

(43.4) - allow NGOs, in view of their important function within the human dimen- sion of the CSCE, to convey their views to their own governments and the governments of all the other participating States during the future work of the CSCE on the human dimension.

(43.5) During the future work of the CSCE on the human dimension, NGOs will have the opportunity to distribute written contributions on specific issues of the human dimension of the CSCE to all delegations.

28 OSCE Human Dimension Commitments pa rt I Partners in Implementation

(43.6) The CSCE Secretariat will, within the framework of the resources at its disposal, respond favourably to requests by NGOs for non-restricted documents of the CSCE.

Helsinki 1992 (Summit Declaration) 7. We reaffirm the validity of the guiding principles and common values of the Helsinki Final Act and the Charter of Paris, embodying responsibilities of States towards each other and of governments towards their people. These are the collective conscience of our community (…) We underline the democratic rights of citizens to demand from their governments respect for these values and standards.

Helsinki 1992 (Decisions: IV. Relations with International Organizations, Relations with Non-Participating States, Role of Non-Governmental Organizations (NGOs)) (1) (…) Successful efforts to build a lasting peaceful and democratic order and to man- age the process of change require more structured and substantive input from groups, individuals, States and organizations outside the CSCE process.

To this end, the participating States have decided as follows:

(…)

Increasing openness of CSCE activities, promoting understanding of the CSCE, expand- ing the role of NGOs

(12) The participating States will increase the openness of the CSCE institutions and structures and ensure wide dissemination of information on the CSCE.

(…)

(14) The participating States will provide opportunities for the increased involvement of non-governmental organizations in CSCE activities.

(15) They will, accordingly:

• apply to all CSCE meetings the guidelines previously agreed for NGO access to cer- tain CSCE meetings;

• make open to NGOs all plenary meetings of review conferences, ODIHR seminars, workshops and meetings, the CSO when meeting as the Economic Forum, and human rights implementation meetings, as well as other expert meetings. In addition each meeting may decide to open some other sessions to attendance by NGOs;

• instruct Directors of CSCE institutions and Executive Secretaries of CSCE meetings to designate an "NGO liaison person" from among their staff;

• designate, as appropriate, one member of their Foreign Ministries and a member of their delegations to CSCE meetings to be responsible for NGO liaison;

OSCE Human Dimension Commitments 29 Implementation of Commitments pa rt I

• promote contacts and exchanges of views between NGOs and relevant national authorities and governmental institutions between CSCE meetings;

• facilitate during CSCE meetings informal discussion meetings between representa- tives of participating States and of NGOs;

• encourage written presentations by NGOs to CSCE institutions and meetings, titles of which may be kept and provided to the participating States upon request;

• provide encouragement to NGOs organizing seminars on CSCE-related issues;

• notify NGOs through the CSCE institutions of the dates of future CSCE meetings, together with an indication, when possible, of the subjects to be addressed, as well as, upon request, the activations of CSCE mechanisms which have been made known to all participating States.

(16) The above provisions will not be applied to persons or organizations which resort to the use of violence or publicly condone terrorism or the use of violence.

(17) The participating States will use all appropriate means to disseminate as widely as possible within their societies knowledge of the CSCE, its principles, commitments and activities.

Istanbul 1999 (Charter for European Security: III. Our Common Response) 27. Non-governmental organizations (NGOs) can perform a vital role in the promo- tion of human rights, democracy and the rule of law. They are an integral component of a strong civil society. We pledge ourselves to enhance the ability of NGOs to make their full contribution to the further development of civil society and respect for human rights and fundamental freedoms.

2.3.4 OSCE Institutions with Particular Relevance to the Human Dimension Istanbul 1999 (Charter for European Security: III. Our Common Response) 14. (…) We individually confirm our willingness to comply fully with our commitments. We also have a joint responsibility to uphold OSCE principles. We are therefore deter- mined to co-operate within the OSCE and with its institutions and representatives … We will co-operate in a spirit of solidarity and partnership in a continuing review of implementation.

Maastricht 2003 (OSCE Strategy to Address Threats to Security and Stability in the Twenty-First Century) The OSCE response

20. The OSCE will continue to be an active player across its region, using its institu- tions — the Office for Democratic Institutions and Human Rights (ODIHR), the High Commissioner on National Minorities (HCNM), and the Representative on Freedom of the Media (RFM) — its field operations and its Secretariat to the full. They are impor-

30 OSCE Human Dimension Commitments pa rt I Partners in Implementation

tant instruments in assisting all participating States to implement their commitments, including respect for human rights, democracy and the rule of law. In all relevant activi- ties, possibilities for strengthening co-operation with the Parliamentary Assembly, and through it, national parliaments will be actively pursued.

A. The Office for Democratic Institutions and Human Rights (ODIHR) I. General Mandate, Including Additional General Tasks Paris 1990 (A New Era of Democracy, Peace and Unity) We decide to establish an Office for Free Elections in Warsaw to facilitate contacts and the exchange of information on elections within participating States.

Paris 1990 (Supplementary Document to Give Effect to Certain Provisions Contained in the Charter of Paris for a New Europe) G. The Office for Free Elections

1. The function of the Office for Free Elections will be to facilitate contacts and the exchange of information on elections within participating States. The Office will thus foster the implementation of paragraphs 6, 7 and 8 of the Document of the Copenhagen Meeting of the Conference on the Human Dimension of the CSCE (the relevant provi- sions are contained in Annex 1).

2. To this end, the Office will

• compile information, including information provided by the competent authori­ties of the participating States, on the dates, procedures and official results of scheduled national elections within participating States, as well as reports of election observa- tions, and provide these on request to governments, parliaments and interested pri- vate organizations;

• serve to facilitate contact among governments, parliaments or private organiza­tions wishing to observe elections and competent authorities of the States in which elec- tions are to take place;

• organize and serve as the venue for seminars or other meetings related to election procedures and democratic institutions at the request of the participating States.

3. The Office will take into account the work of and co-operate with other institutions active in this field.

4. The Office will carry out other tasks assigned to it by the Council.

Annex 1 (Copenhagen 1990)

(6) The participating States declare that the will of the people, freely and fairly expressed through periodic and genuine elections, is the basis of the authority and legitimacy of all government. The participating States will accordingly respect the right of their cit-

OSCE Human Dimension Commitments 31 Implementation of Commitments pa rt I

izens to take part in the governing of their country, either directly or through repre- sentatives freely chosen by them through fair electoral processes. They recognize their responsibility to defend and protect, in accordance with their laws, their international human rights obligations and their international commitments, the democratic order freely established through the will of the people against the activities of persons, groups or organizations that engage in or refuse to renounce terrorism or violence aimed at the overthrow of that order or of that of another participating State.

(7) To ensure that the will of the people serves as the basis of the authority of govern- ment, the participating States will

(7.1) - hold free elections at reasonable intervals, as established by law;

(7.2) - permit all seats in at least one chamber of the national legislature to be freely con- tested in a popular vote;

(7.3) - guarantee universal and equal suffrage to adult citizens;

(7.4) - ensure that votes are cast by secret ballot or by equivalent free voting procedure, and that they are counted and reported honestly with the official results made public;

(7.5) - respect the right of citizens to seek political or public office, individually or as representatives of political parties or organizations, without discrimination;

(7.6) - respect the right of individuals and groups to establish, in full freedom, their own political parties or other political organizations and provide such political parties and organizations with the necessary legal guarantees to enable them to compete with each other on a basis of equal treatment before the law and by the authorities;

(7.7) - ensure that law and public policy work to permit political campaigning to be con- ducted in a fair and free atmosphere in which neither administrative action, violence nor intimidation bars the parties and the candidates from freely presenting their views and qualifications, or prevents the voters from learning and discussing them or from casting their vote free of fear of retribution;

(7.8) - provide that no legal or administrative obstacle stands in the way of unimpeded access to the media on a non-discriminatory basis for all political groupings and indi- viduals wishing to participate in the electoral process;

(7.9) - ensure that candidates who obtain the necessary number of votes required by law are duly installed in office and are permitted to remain in office until their term expires or is otherwise brought to an end in a manner that is regulated by law in conformity with democratic parliamentary and constitutional procedures.

(8) The participating States consider that the presence of observers, both foreign and domestic, can enhance the electoral process for States in which elections are taking place. They therefore invite observers from any other CSCE participating States and any appropriate private institutions and organizations who may wish to do so to observe

32 OSCE Human Dimension Commitments pa rt I Partners in Implementation

the course of their national election proceedings, to the extent permitted by law. They will also endeavour to facilitate similar access for election proceedings held below the national level. Such observers will undertake not to interfere in the electoral proceed- ings.

Prague 1992 (Document on Further Development of CSCE Institutions and Structures: III. Human Dimension) 9. In order to extend practical co-operation among participating States in the human dimension, the Ministers decided to give additional functions to the Office for Free Elections which will henceforth be called the Office for Democratic Institutions and Human Rights.

10. Under the general guidance of the CSO, the Office should, inter alia:

• organize a short CSCE meeting at the seat of the Office for Democratic Institutions and Human Rights to address implementation of CSCE human dimension commit- ments every year in which a follow-up meeting does not take place (…)

• serve as an institutional framework for sharing and exchanging information on availa- ble technical assistance, expertise, and national and international programmes aimed at assisting the new democracies in their institution-building;

• facilitate contacts between those offering such resources and those wishing to make use of them;

• develop co-operation with the Council of Europe in order to make use of its database of such resources and services;

• establish contacts with non-governmental organizations active in the field of demo- cratic institution-building, with a view to enabling interested participating States to make use of their extensive resources and expertise;

• facilitate co-operation in training and education in disciplines relevant to democratic institutions;

• organize meetings and seminars among all participating States on subjects related to the building and revitalization of democratic institutions, such as a short seminar on free media and, at an appropriate time, one on migration. These meetings and semi- nars will be held in Warsaw unless otherwise decided.

11. In order to avoid duplication of work specially in the fields enumerated above, the Ministers directed the Office to work closely with other institutions active in the field of democratic institution-building and human rights, particularly the Council of Europe and the European Commission for Democracy through Law.

12. The CSO will on an annual basis examine the need for meetings and seminars on the human dimension and democratic institutions and will establish a work programme.

OSCE Human Dimension Commitments 33 Implementation of Commitments pa rt I

(…)

14. The Office for Democratic Institutions and Human Rights is designated as the CSCE institution charged with the tasks in connection with expert and rapporteur missions according to the Document of the Moscow Meeting of the Conference on the Human Dimension of the CSCE.

Helsinki 1992 (Decisions: VI. The Human Dimension) (2) The participating States express their strong determination to ensure full respect for human rights and fundamental freedoms, to abide by the rule of law, to promote the principles of democracy and, in this regard, to build, strengthen and protect democratic institutions, as well as to promote tolerance throughout society. To these ends, they will broaden the operational framework of the CSCE, including by further enhancing the ODIHR, so that information, ideas, and concerns can be exchanged in a more concrete and meaningful way, including as an early warning of tension and potential conflict. In doing so, they will focus their attention on topics in the Human Dimension of partic- ular importance. They will therefore keep the strengthening of the Human Dimension under constant consideration, especially in a time of change.

(…)

Framework for monitoring compliance with CSCE commitments and for promoting co-operation in the human dimension

(4) In order to strengthen and monitor compliance with CSCE commitments as well as to promote progress in the Human Dimension, the participating States agree to enhance the framework of their co-operation and to this end decide the following:

Enhanced role of the ODIHR

(5) Under the general guidance of the CSO and in addition to its existing tasks as set out in the Charter of Paris for a New Europe and in the Prague Document on Further Development of CSCE Institutions and Structures, the ODIHR will, as the main institu- tion of the Human Dimension:

(5a) assist the monitoring of implementation of commitments in the Human Dimen- sion by:

• serving as a venue for bilateral meetings under paragraph 2 and as a channel for infor- mation under paragraph 3 of the Human Dimension Mechanism as set out in the Vienna Concluding Document;

• receiving any comments from States visited by CSCE missions of relevance to the Human Dimension other than those under the Human Dimension Mechanism; it will transmit the report of those missions as well as eventual comments to all participating States with a view to discussion at the next implementation meeting or review confer- ence;

34 OSCE Human Dimension Commitments pa rt I Partners in Implementation

• participating in or undertaking missions when instructed by the Council or the CSO;

(5b) act as a clearing-house for information on:

• a state of public emergency according to paragraph 28.10 of the Document of the Mos- cow Meeting of the Conference on the Human Dimension;

• resource lists, and assistance, e.g. in the field of censuses or on democracy at a local and regional level, and the holding of national seminars on such issues;

(5c) assist other activities in the field of the Human Dimension, including the building of democratic institutions by:

• fulfilling the tasks as defined in the "Programme of co-ordinated support to recently admitted participating States";

• arranging "Seminars on the democratic process" at the request of participating States. The same procedural provisions as set out in the "Programme of co-ordinated support for recently admitted participating States" will also apply to these seminars;

• contributing, within the resources at its disposal, to the preparation of seminars at the request of one or more participating States;

• providing, as appropriate, facilities to the High Commissioner on National Minori- ties;

• communicating, as appropriate, with relevant international and non-governmental organizations;

• consulting and co-operating with relevant bodies of the Council of Europe and those associated with it, and examining how they can contribute, as appropriate, to the ODIHR's activities. The ODIHR will also, at the request of participating States, sup- ply them with information about programmes within the framework of the Council of Europe which are open to all participating States.

(6) The activities on Human Dimension issues undertaken by the ODIHR may, inter alia, contribute to early warning in the prevention of conflicts.

Human Dimension Mechanism

(7) In order to align the Human Dimension Mechanism with present CSCE structures and institutions the participating States decide that:

Any participating State which deems it necessary may provide information on situa- tions and cases which have been the subject of requests under paragraphs 1 or 2 of the chapter entitled the “Human Dimension of the CSCE” of the Vienna Concluding Doc- ument or on the results of those procedures, to the participating States through the ODIHR - which can equally serve as a venue for bilateral meetings under paragraph 2 -

OSCE Human Dimension Commitments 35 Implementation of Commitments pa rt I

or diplomatic channels. Such information may be discussed at Meetings of the CSO, at implementation meetings on Human Dimension issues and review conferences.

(…)

Implementation meetings on Human Dimension issues

(9) Every year in which a review conference does not take place, the ODIHR will organ- ize a three-week meeting at expert-level of all participating States at its seat to review implementation of CSCE Human Dimension commitments. The meeting will perform the following tasks:

(9a) a thorough exchange of views on the implementation of Human Dimension com- mitments, including discussion on the information provided in accordance with para- graph 4 of the Human Dimension Mechanism and on the Human Dimension aspects of the reports of CSCE missions, as well as the consideration of ways and means of improving implementation;

(9b) an evaluation of the procedures for monitoring compliance with commitments.

(10) The implementation meeting may draw to the attention of the CSO measures to improve implementation which it deems necessary.

(11) The implementation meeting will not produce a negotiated document.

(12) Written contributions and information material will be of a non-restricted or restricted character as indicated by the submitting State.

(13) Implementation meetings will be organized to meet in formal and informal ses- sions. All formal sessions will be open. In addition, the participating States may decide, on a case-by-case basis, to open informal sessions.

(14) The Council of Europe, the European Commission for Democracy through Law and the European Bank for Reconstruction and Development (EBRD), as well as other relevant international organizations and institutions will be encouraged by the imple- mentation meeting to attend and make contributions.

(15) Non-governmental organizations having relevant experience in the field of the Human Dimension are invited to make written presentations to the implementation meeting, e.g. through the ODIHR, and may be invited by the implementation meeting, on the basis of their written presentations, to address specific questions orally as appro- priate.

(16) During two half days in the course of the implementation meeting no formal ses- sion will be scheduled in order to provide better opportunities for possible contacts with NGOs. To this purpose, a hall at the meeting site will be placed at the disposal of NGOs.

36 OSCE Human Dimension Commitments pa rt I Partners in Implementation

CSCE Human Dimension seminars

(17) Under the general guidance of the CSO, the ODIHR will organize CSCE Human Dimension seminars which will address specific questions of particular relevance to the Human Dimension and of current political concern. The CSO will establish an annual work programme including the titles and dates of such seminars. The agenda and modalities of each seminar will be approved by the CSO at the latest three months before the seminar. In doing so, the CSO will take into account views expressed by the ODIHR. Unless otherwise decided, seminars will be held at the seat of the ODIHR and will not exceed one week. The work programme will take into account work by relevant international organizations and institutions.

(18) These seminars will be organized in an open and flexible manner. Relevant inter- national organizations and institutions may be invited to attend and to make contribu- tions. So may NGOs with relevant experience. Independent experts attending the semi- nar as members of national delegations will also be free to speak in their own capacity.

(19) CSCE seminars will be organized to meet in formal and informal sessions. All for- mal sessions will be open. In addition, the participating States may decide, on a case-by- case basis, to open informal sessions.

(20) CSCE seminars will not produce a negotiated document or follow-up programmes.

(21) Contributions by independent experts will be of a non-restricted character.

Rome 1993 (Decisions: IV. The Human Dimension) (3) The political consultation process and CSCE missions

(…)

• Further emphasis will be given to human dimension issues in mandates of CSCE mis- sions as well as in the follow-up of mission reports. To this end the ODIHR will be given an enhanced role in the preparation of CSCE missions, inter alia, in providing information and advice to missions in accordance with its expertise.

(…)

4. Office for Democratic Institutions and Human Rights

The Ministers decided to strengthen the ODIHR’s functions and operations. Inter alia, the ODIHR will enhance its activities under its mandate in the following areas:

• the building of an expanded database of experts in fields relevant to the human dimension. Participating States and non-governmental organizations are requested to inform the ODIHR of experts available in fields relevant to the human dimension;

(…)

OSCE Human Dimension Commitments 37 Implementation of Commitments pa rt I

• strengthened co-operation with relevant international organizations in order to co- ordinate activities and identify possible areas of joint endeavour;

• receiving information provided by NGOs having relevant experience in the human dimension field;

• serving as a point of contact for information provided by participating States in accordance with CSCE commitments;

• disseminating general information on the human dimension, and international humanitarian law.

Budapest 1994 (Decisions: VIII. The Human Dimension) 8. The ODIHR, as the main institution of the human dimension, in consultation with the Chairman-in-Office, will, acting in an advisory capacity, participate in discussions of the Senior Council and the Permanent Council, by reporting at regular intervals on its activities and providing information on implementation issues. It will provide sup- porting material for the annual review of implementation and, where necessary, clarify or supplement information received. Acting in close consultation with the Chairman- in-Office, the Director of the ODIHR may propose further action.

9. The participating States recognize the need for enhanced co-operation through the ODIHR with other international organizations and institutions active in the human dimension, including among others the United Nations High Commissioner for Human Rights, for the exchange of information, including reports, and for further developing of future-oriented activities, such as outlined in the present document.

10. The participating States decide to

(…)

• task the ODIHR to act as a clearing-house for the exchange of information on media issues in the region, and encourage governments, journalists and NGOs to provide the ODIHR with information on the situation of the media.

11. The ODIHR will be consulted on a CSCE mission's mandate before adoption and will contribute to the follow-up of mission reports as decided by the Permanent Coun- cil. The ODIHR's knowledge of experts on the human dimension should be used to help to staff CSCE missions. These missions will also designate a mission member to liaise with the ODIHR and with NGOs on human dimension issues.

(…)

13. The provisions mentioned in the human dimension chapter of this document do not in any way constitute a change in the mandate of either the ODIHR or the HCNM.

ODIHR seminars

38 OSCE Human Dimension Commitments pa rt I Partners in Implementation

14. The number of large-scale human dimension seminars will as a rule be reduced to two per year. They will focus on topics which are of the broadest interest.

There will be more emphasis on regional seminars. Where appropriate they will form part of the Programme of Co-ordinated Support. These seminars should seek full par- ticipation from States in the region in which they are held (…)

Budapest 1994 (Decisions: VIII. The Human Dimension) 43. They agreed that the ability of the ODIHR to provide in-depth expertise on human dimension issues under the Programme of Co-ordinated Support should be further developed. In order to respond to requests for advice by newly independent States concerned on all aspects of democratization, they decided that using experts-at-large within the framework of the Programme of Co-ordinated Support would be a useful enhancement of the ODIHR’s role.

II. Additional Tasks Related to Elections Rome 1993 (Decisions: IV. The Human Dimension) 4. Office for Democratic Institutions and Human Rights

The Ministers decided to strengthen the ODIHR’s functions and operations. Inter alia, the ODIHR will enhance its activities under its mandate in the following areas:

(…)

• enhancement of its role in comprehensive election monitoring (…)

Budapest 1994 (Decisions: VIII. The Human Dimension) 12. The ODIHR will play an enhanced role in election monitoring, before, during and after elections. In this context, the ODIHR should assess the conditions for the free and independent functioning of the media.

The participating States request that co-ordination between the various organizations monitoring elections be improved, and task the ODIHR to consult all relevant organi- zations in order to develop a framework for co-ordination in this field.

In order to enhance election monitoring preparations and procedures, the ODIHR will also devise a handbook for election monitors and set up a rolling calendar for upcom- ing elections.

Maastricht 2003 (Decisions: Decision No. 5/03 on Elections) The Ministerial Council

(…)

OSCE Human Dimension Commitments 39 Implementation of Commitments pa rt I

Tasks the ODIHR to consider ways to improve the effectiveness of its assistance to par- ticipating States in following up recommendations made in ODIHR election-observa- tion reports

III. ODIHR Contact Point for Roma and Sinti Issues Budapest 1994 (Decisions: VIII. The Human Dimension) 23. The participating States decide to appoint within the ODIHR a contact point for Roma and Sinti (Gypsies) issues. The ODIHR will be tasked to:

• act as a clearing-house for the exchange of information on Roma and Sinti (Gypsies) issues, including information on the implementation of commitments pertaining to Roma and Sinti (Gypsies);

• facilitate contacts on Roma and Sinti (Gypsies) issues between participating States, international organizations and institutions and NGOs;

• maintain and develop contacts on these issues between CSCE institutions and other international organizations and institutions.

To fulfil these tasks, the ODIHR will make full use of existing resources. In this con- text they welcome the announcement made by some Roma and Sinti (Gypsies) organi- zations of their intention to make voluntary contributions.

24. The participating States welcome the activities related to Roma and Sinti (Gypsies) issues in other international organizations and institutions, in particular those under- taken in the Council of Europe.

Oslo 1998 (Decisions: Decision on Enhancement of the OSCE’s Operational Capabili- ties Regarding Roma and Sinti Issues) The Ministerial Council,

Bearing in mind the existing OSCE commitments regarding Roma and Sinti, and

Recalling the decision taken by the Budapest Summit to appoint within the ODIHR a Contact Point for Roma and Sinti (Gypsies) Issues,

1. Decides to enhance the capability of the OSCE regarding those issues by strengthen- ing the existing ODIHR Contact Point for Roma and Sinti Issues. Among its priorities will be:

• to enhance the OSCE’s interaction with the governments of the participating States, with representatives of Roma and Sinti communities, as well as with international organizations, initiatives and NGOs relevant to Roma and Sinti issues, and in particu- lar to secure further mutual reinforcement of co-operation with the Co-ordinator for Roma in the Council of Europe with a view to avoiding duplication of effort, including the establishment of regular consultations with those organizations, initiatives and

40 OSCE Human Dimension Commitments pa rt I Partners in Implementation

NGOs in order to develop synergies and common approaches designed to facilitate full integration of Roma and Sinti communities into the societies they live in, while preserving their identity;

• to enhance co-operation among OSCE institutions and mission/field presences with respect to Roma and Sinti, if applicable;

• to develop, on the basis of input from participating States, the OSCE institutions, and in particular the HCNM, Roma and Sinti communities, NGOs, and international organizations and other institutions and initiatives, a work programme which should include, inter alia, seminars, workshops and clearing houses;

• to collect information from the participating States on legislative and other measures related to the situation of Roma and Sinti with a view to making it available to the OSCE community, as well as to other interested international organizations, and to elaborating additional reports on the situation of Roma and Sinti in the OSCE area.

2. Further decides that the Contact Point should deal solely with matters concerning Roma and Sinti.

Maastricht 2003 (Decisions: Annex to Decision No. 2/03 on Combating Trafficking in Human Beings; OSCE Action Plan to Combat Trafficking in Human Beings) Action for OSCE Institutions and Bodies

6. Data collection and research

(…)

6.2 Tasking ODIHR’s Contact Point on Roma and Sinti with continuing to gather data regarding trafficking in human beings, especially children, and its effects on Roma and Sinti communities.

Maastricht 2003 (Decisions: Annex to Decision No. 3/03; Action Plan on Improving the Situation of Roma and Sinti within the OSCE Area) III Combating racism and discrimination

Legislation and law enforcement

Recommended action by OSCE institutions and structures:

(…)

23. The ODIHR/Contact Point for Roma and Sinti Issues (CPRSI) will promote better relations between Roma and Sinti non-governmental organizations (NGOs) and the participating States.

24. The ODIHR-CPRSI will serve as a clearing house on initiatives undertaken by par- ticipating States and facilitate exchanges of information on best practices.

OSCE Human Dimension Commitments 41 Implementation of Commitments pa rt I

25. The ODIHR-CPRSI will, in close co-operation with participating States, Roma and Sinti communities, and where possible with other international organizations, and in full respect of the laws on the protection of personal data, collect documentation for the purpose of developing more precisely targeted policies.

Police

Recommended action by OSCE institutions and structures:

(…)

34. The ODIHR-CPRSI and the Strategic Police Matters Unit will, within their respec- tive mandates, produce a compilation of police “best practices” in the OSCE region with respect to policing and Roma and Sinti communities.

35. The HCNM, the ODIHR-CPRSI and the Strategic Police Matters Unit will assist the participating States in developing codes of conduct to prevent racial profiling and improve interethnic relations.

IV. Addressing socio-economic issues

Housing and living conditions

Recommended action by OSCE institutions and structures:

47. The ODIHR-CPRSI and the Office of the Co-ordinator of OSCE Economic and Envi- ronmental Activities (OCEEA) are encouraged to play a larger role in facilitating the provision of information about and access to resources made available by foreign donors for specific projects, particularly those generated by Roma and Sinti groups, addressing the social and economic development of Roma and Sinti communities.

Unemployment and economic problems

Recommended action by OSCE institutions and structures:

54. At the request of participating States, the ODIHR-CPRSI and the OCEEA will sup- port development of the employability and entrepreneurial skills of Roma and Sinti peo- ple through the establishment of training and retraining programmes in participating States. Successful practices, particularly relating to the development of entrepreneurial skills and small and medium-sized enterprises (SMEs) (e.g., the Youth Entrepreneurship Seminars programme) could be adapted to the needs of Roma and Sinti people (…)

(…)

56. The ODIHR-CPRSI and the OCEEA will draw upon the research developed by UNDP and other agencies to assess the needs of Roma and Sinti people with a view to fostering policies that take into account the extent and nature of their specific needs in each participating State.

42 OSCE Human Dimension Commitments pa rt I Partners in Implementation

57. In co-ordination with relevant international organizations (in particular UNDP and the World Bank), the ODIHR-CPRSI and the OCEEA will examine ways to stimulate better access by Roma and Sinti people to regular training programmes. Workshops or round-table discussions tailored to the needs of Roma and Sinti people can be organ- ized, with a view to informing and educating community members regarding the eco- nomic and social rights of individuals and entrepreneurs.

Health care

Recommended action by OSCE institutions and structures:

(…)

65. The ODIHR-CPRSI and, where appropriate, other OSCE institutions and structures, including OSCE field operations, will assist participating States in launching educa- tional initiatives to help Roma and Sinti people make full use of regular health services. They will, inter alia, collect, produce and disseminate relevant information on good practices.

66. The ODIHR-CPRSI will pay special attention to ensuring that Roma and Sinti peo- ple have access to programmes aimed at prevention and/or treatment of drug abuse and addiction and AIDS and related diseases.

VII. Roma and Sinti in crisis and post-crisis situations

(…)

Recommended action by OSCE institutions and structures:

(…)

114. In accordance with its mandate, the ODIHR-CPRSI is called upon to respond effec- tively to crisis situations by, inter alia, co-operating with relevant governments, inter- governmental bodies and international organizations, in particular the UNHCR, to ensure protection of Roma communities at risk.

115. The ODIHR-CPRSI will raise awareness among public officials, journalists and oth- ers of the situation of Roma and Sinti people in crisis or conflict areas.

VIII. Enhancing co-operation and co-ordination with other international organizations and NGOs 118. The ODIHR-CPRSI will continue to participate actively in the Informal Contact Group on Roma of the Intergovernmental Organisations*.

(…)

* The Informal Contact Group on Roma of the Intergovernmental Organisations is composed of representatives from OSCE/ODIHR, the Council of Europe, the European Commission and the European Union.

OSCE Human Dimension Commitments 43 Implementation of Commitments pa rt I

121. The ODIHR-CPRSI will seek to consolidate the “International Roma Contact Group”** and will further contribute to the Council of Europe’s initiative for a possible European Forum for Roma and Travellers.

122. The ODIHR-CPRSI will provide information and co-ordination services to rele- vant national and international institutions, and will facilitate dialogue among them and with Roma NGOs.

123. The ODIHR-CPRSI will seek to develop relations with Roma and Sinti organiza- tions and help them to co-ordinate their efforts and resources, both within individual States and across borders, and to avail themselves fully of opportunities provided by existing national and international policies affecting Roma and Sinti people.

124. The ODIHR-CPRSI will draw upon the experience and input of existing monitor- ing projects developed by other international organizations.

IX. The ODIHR Contact Point for Roma and Sinti Issues

125. Where necessary, the ODIHR-CPRSI will facilitate information-sharing among OSCE participating States that have developed or are seeking to improve national poli- cies on Roma and Sinti people.

126. Upon request, ODIHR-CPRSI will advise participating States on future policies related to Roma and Sinti people and will stimulate debates between governments and Roma NGOs.

127. The ODIHR-CPRSI will support capacity-building for Roma and Sinti NGOs.

128. The ODIHR-CPRSI will establish a database of best practices in OSCE participat- ing States.

129. The ODIHR-CPRSI should assume a proactive role in analysing measures under- taken by participating States, as well as in particular situations and incidents relating to Roma and Sinti people. Towards this end CPRSI will establish and develop direct con- tacts with participating States and will offer advice and opinions to them.

130. Governments concerned will co-operate with the ODIHR-CPRSI in identifying effective solutions to crisis situations.

131. The ODIHR-CPRSI will provide Roma and Sinti communities with more informa- tion on OSCE resources and activities.

132. In co-operation with relevant OSCE institutions and structures, the ODIHR will develop appropriate action aimed at tackling the root causes of trafficking in human

** The International Roma Contact Group was established in October 2000 at the initiative of the ODIHR Contact Point for Roma and Sinti Issues. The Contact Group includes representatives of the International Romani Union, the Roma National Congress, elected Romani representatives, Romani experts and the ODIHR- CPRSI.

44 OSCE Human Dimension Commitments pa rt I Partners in Implementation

beings, especially in children, and raise awareness of its consequences among Roma and Sinti communities.

(…)

138. The ODIHR-CPRSI will disseminate information on this Plan to Roma and Sinti communities and organizations as well as to other international organizations.

Mass Media

Recommended action by OSCE institutions and structures:

(…)

41. The ODIHR-CPRSI and the RFOM will organize round tables with journalists on the image that Roma and Sinti communities have in society.

VI. Enhancing participation in public and political life

Recommended action by OSCE institutions and structures:

(…)

100. The ODIHR-CPRSI should help to organize training for and by Roma NGOs, including media organizations, for wider Roma communities on the issues of demo- cratic processes and participation.

(…)

105. The ODIHR-CPRSI and, where appropriate, other OSCE institutions and struc- tures, including OSCE field operations, will design programmes that encourage Roma and Sinti representatives to stand as candidates for elected bodies or will identify crea- tive solutions that would ensure the participation of Roma and Sinti representatives in national and local decision-making processes.

IV. Additional Tasks Related to Tolerance and Non-discrimination, Including Roma and Sinti Issues Budapest 1994 (Decisions: VIII. The Human Dimension) 25. The participating States condemn manifestations of intolerance, and especially of aggressive nationalism, racism, chauvinism, xenophobia and anti-semitism, and will continue to promote effective measures aimed at their eradication. They request the ODIHR to continue to pay special attention to these phenomena, collecting informa- tion on their various manifestations in participating States.

Bucharest 2001 (Decisions: Decision No. 5) The Ministerial Council

(…)

OSCE Human Dimension Commitments 45 Implementation of Commitments pa rt I

Calls on OSCE institutions, particularly the ODIHR, the High Commissioner on National Minorities, and the Representative on Freedom of the Media, to pay increased attention to manifestations of aggressive nationalism, racism, chauvinism, xenophobia, anti-semitism and violent extremism, to countering intolerance and discrimination on the ground of racial or ethnic origin, religious, political or other opinion and to foster- ing respect for rule of law, democratic values, human rights and fundamental freedoms, including freedom of expression, thought, conscience, religion or belief;

Maastricht 2003 (Decisions: Annex to Decision No. 3/03: Action Plan on Improving the Situation of Roma and Sinti within the OSCE Area) III Combating racism and discrimination

Legislation and law enforcement

Recommended action by OSCE institutions and structures:

20. The ODIHR and, where appropriate, other OSCE institutions and structures, includ- ing OSCE field operations, will assist participating States, at their request, in developing anti-discrimination legislation, as well as in establishing anti-discrimination bodies.

(…)

22. Upon request, the ODIHR will provide advice on how a participating State’s exist- ing mechanisms, such as ombudsman offices, commissions for combating discrimina- tion, police disciplinary commissions, and other relevant bodies can alleviate tensions between Roma and Sinti and non-Roma communities.

Police

Recommended action by OSCE institutions and structures:

33. The Strategic Police Matters Unit in the Secretariat and the ODIHR will assist par- ticipating States in developing programmes and confidence-building measures — such as community policing — to improve the relations between Roma and Sinti people and the police, particularly at the local level.

Mass Media

Recommended action by OSCE institutions and structures:

39. In co-operation with the ODIHR as well as relevant international organizations, the Representative on Freedom of the Media (RFOM) should consider how the OSCE could contribute to the establishment of a European Roma Radio which would broad- cast throughout Europe. The ODIHR and the RFOM should organize public debates, anti-discrimination campaigns and joint training programmes with and for the media.

(…)

46 OSCE Human Dimension Commitments pa rt I Partners in Implementation

Health care

Recommended action by OSCE institutions and structures:

64. In co-operation with other international organizations and NGOs, the ODIHR will draw upon existing research data to identify socio-economic, political and cultural fac- tors that have an impact on the health status of particular Roma and Sinti populations, and will advise participating States regarding public health programmes which would respond to needs identified.

VI. Enhancing participation in public and political life

Recommended action by OSCE institutions and structures:

99. The ODIHR and, where appropriate, other OSCE institutions and structures, includ- ing OSCE field operations, will develop programmes aimed at fostering the registration necessary for full political participation.

(…)

101. The ODIHR and, where appropriate, other OSCE institutions and structures, including OSCE field operations, will develop and implement voter education and voter registration programmes.

102. The ODIHR will act as a catalyst for exchanges of information and best practices among participating States and other international organizations.

103. The ODIHR will continue and strengthen the practice of examining the involve- ment of Roma people in voting and election processes, and will continue the practice of including Roma and Sinti experts in its election observation missions in the OSCE area.

(…)

106. The ODIHR will devote particular attention to activities aimed at increasing access by Roma women to all areas of public and political life.

VII. Roma and Sinti in crisis and post-crisis situations

Recommended action by OSCE institutions and structures:

113. The ODIHR will make use of its specific role in addressing conflict prevention and identifying areas of potential crisis requiring early intervention.

(…)

116. The ODIHR will assume a proactive role in analysing measures undertaken by par- ticipating States relating to Roma and Sinti people and offer its advice with a view to

OSCE Human Dimension Commitments 47 Implementation of Commitments pa rt I

better tackling those elements of tension in particular local contexts which may evolve, if not prevented, into open conflict situations.

Maastricht 2003 (Decisions: Decision No. 4/03 on Tolerance and Non-discrimination) The Ministerial Council

(…)

6. Encourages all participating States to collect and keep records on reliable informa- tion and statistics on hate crimes, including on forms of violent manifestations of rac- ism, xenophobia, discrimination, and anti-Semitism, as discussed and recommended in the above-mentioned conferences. Recognizing the importance of legislation to com- bat hate crimes, participating States will inform the ODIHR about existing legislation regarding crimes fuelled by intolerance and discrimination, and, where appropriate, seek the ODIHR’s assistance in the drafting and review of such legislation;

7. Tasks the ODIHR, in full co-operation, inter alia, with the United Nations Commit- tee on the Elimination of Racial Discrimination (UNCERD), the European Commission against Racism and Intolerance (ECRI) and the European Monitoring Centre on Racism and Xenophobia (EUMC), as well as relevant NGOs, with serving as a collection point for information and statistics collected by participating States, and with reporting reg- ularly on these issues, including in the format of the Human Dimension Implementa- tion Meeting, as a basis for deciding on priorities for future work. The ODIHR will, inter alia, promote best practices and disseminate lessons learned in the fight against intol- erance and discrimination;

(…)

Sofia 2004 (Decisions: Annex to Decision No. 12/04 on Tolerance and Non-discrimina- tion; Permanent Council Decision No. 607: Combating Anti-Semitism) The Permanent Council.

(…)

Decides

(…)

2. To task the ODIHR to:

• Follow closely, in full co-operation with other OSCE institutions as well as the United Nations Committee on the Elimination of Racial Discrimination (UNCERD), the European Commission against Racism and Intolerance (ECRI), the European Moni- toring Centre on Racism and Xenophobia (EUMC) and other relevant international institutions and NGOs, anti-Semitic incidents in the OSCE area making use of all reli- able information available;

48 OSCE Human Dimension Commitments pa rt I Partners in Implementation

• Report its findings to the Permanent Council and to the Human Dimension Imple- mentation Meeting and make these findings public. These reports should also be taken into account in deciding on priorities for the work of the OSCE in the area of intoler- ance;

• Systematically collect and disseminate information throughout the OSCE area on best practices for preventing and responding to anti-Semitism and, if requested, offer advice to participating States in their efforts to fight anti-Semitism;

(…)

Sofia 2004 (Decisions: Annex to Decision No. 12/04 on Tolerance and Non-discrimina- tion; Permanent Council Decision No. 621: Tolerance and the Fight against Racism, Xen- ophobia and Discrimination) The Permanent Council,

(…)

In order to reinforce our common efforts to fight manifestations of intolerance across the OSCE region,

Decides,

(…)

2. To task the ODIHR to:

• Follow closely, in full co-operation with other OSCE institutions as well as the United Nations Committee on the Elimination of Racial Discrimination (UNCERD), the United Nations Office of the High Commissioner for Human Rights (UNHCHR), the European Commission against Racism and Intolerance (ECRI), the European Moni- toring Centre on Racism and Xenophobia (EUMC) and other relevant international institutions and NGOs, incidents motivated by racism, xenophobia, or related intoler- ance, including against Muslims, and anti-Semitism in the OSCE area making use of all reliable information available;

• Report its findings to the Permanent Council and to the Human Dimension Imple- mentation Meeting and make these findings public. These reports should also be taken into account in deciding on priorities for the work of the OSCE in the area of intoler- ance;

• Systematically collect and disseminate information throughout the OSCE area on best practices for preventing and responding to racism, xenophobia and discrimination and, if requested, offer advice to participating States in their efforts to fight racism, xenophobia and discrimination;

OSCE Human Dimension Commitments 49 Implementation of Commitments pa rt I

• Support the ability of civil society and the development of partnerships to address racism, xenophobia, discrimination or related intolerance, including against Muslims, and anti-Semitism (…)

V. Additional Tasks Related to Gender Equality Sofia 2004 (Decisions: Annex to Decision No. 14/04; 2004 OSCE Action Plan for the Pro- motion of Gender Equality) V. Supporting OSCE participating States in implementing relevant commitments to promoting equality between women and men

(…)

44. Priorities

(a) Developing projects in OSCE States not hosting missions

• In countries without missions, the ODIHR will identify projects to support measures in the areas of prevention of violence against women, promotion of women in the pub- lic, political, and economic spheres, and support for national gender-mainstreaming.

(b) Ensuring non-discriminatory legal and policy frameworks

• The ODIHR, in co-operation with other international organizations and relevant national bodies and institutions, will assist OSCE participating States in complying with international instruments for the promotion of gender equality and women’s rights, and in reviewing legislation to ensure appropriate legal guarantees for the pro- motion of gender equality in accordance with OSCE and other commitments;

• The ODIHR will assist in the development and implementation of specific programmes and activities to promote women’s rights, to increase the role of women at all levels of decision-making, and to promote equality between women and men throughout the OSCE area, particularly through education in gender awareness;

• The ODIHR will assist in the implementation and assessment of national strategies and action plans on measures to promote gender equality and gender-mainstreaming;

(…)

(d) Ensuring equal opportunity for participation of women in political and public life

• The ODIHR will assist participating States in developing effective measures to bring about the equal participation of women in democratic processes and will assist in developing best practices for their implementation;

• The ODIHR and the OSCE field operations will assist, as appropriate, in building up local capacities and expertise on gender issues as well as networks linking community leaders and politicians;

50 OSCE Human Dimension Commitments pa rt I Partners in Implementation

• The ODIHR will continue to assist participating States in promoting women’s political participation. It will continue, as a part of its Election Observation Mission, to moni- tor and report on women’s participation in electoral processes. When possible, addi- tionally, the ODIHR will commission and publish reports specifically analysing the situation of women in electoral processes;

(g) Building national mechanisms for the advancement of women

• The ODIHR will continue to provide know-how and support for the building-up of democratic institutions for advancing gender equality, such as Ombudsman’s offices at local and national levels, as appropriate;

• The ODIHR will facilitate dialogue and co-operation between civil society, media and government in promoting gender-mainstreaming.

VI. Additional Tasks Related to Combating Trafficking in Human Beings Vienna 2000 (Decisions: Decision on Enhancing the OSCE’s Efforts to Combat Traffick- ing in Human Beings) The Ministerial Council

(…)

7. Calls on OSCE institutions, in particular the ODIHR, and field operations, to develop and implement anti-trafficking programmes and to promote co-ordinated efforts in the areas of prevention, prosecution and protection, in co-operation with non-governmen- tal organizations as well as international organizations and other relevant institutions;

(…)

13. Calls on the OSCE Secretariat, in co-operation with the ODIHR, to intensify anti- trafficking training in its induction programmes for OSCE field personnel in order to enhance their capacity to monitor, report and respond to the problem of traffick- ing through regular OSCE activities; and to raise awareness within OSCE institutions and among OSCE personnel of the problems of trafficking; these training programmes should also be made available to participating States and other international organiza- tions;

(…)

Maastricht 2003 (Decisions: Annex to Decision No. 2/03 on Combating Trafficking in Human Beings; OSCE Action Plan to Combat Trafficking in Human Beings) III. Investigation, law enforcement and prosecution

(…)

9. Legislative review and reform

OSCE Human Dimension Commitments 51 Implementation of Commitments pa rt I

9.1 The ODIHR, and where appropriate the field operations, will continue to promote and support legislative review and reform efforts in compliance with international standards.

(…)

10.4 As part of its assistance in the development of National Referral Mechanisms the ODIHR will continue to promote and encourage co-operation between law enforce- ment and civil society.

(…)

12. Training

12.1 The ODIHR and the OSCE Strategic Police Matters Unit will continue to develop training materials targeted at law enforcement authorities on trafficking and sex crimes investigation, consult with the International Law Enforcement Academy (ILEA) in Budapest regarding possibilities for incorporating this training into ILEA programs, identify law enforcement trainers to conduct training, and facilitate funding training sessions for law enforcement authorities in OSCE participating States.

IV. Prevention of trafficking in human beings

8. Awareness-raising

8.1 The ODIHR and, where appropriate, field operations will continue to contribute to research efforts as well as promoting and carrying out awareness-raising initiatives in co-operation with relevant partners throughout the OSCE region.

8.2 (…) The ODIHR will enhance training activities with regard to the responsibility of the media for dealing with the topic of trafficking in a sensitive manner and without reinforcing negative stereotypes. Training will stress the complexity of the trafficking phenomenon and the need for a comprehensive response.

V. Protection and assistance

11. National Referral Mechanism

11.1 Enhancing the activities of the OSCE, especially the ODIHR, in assisting partici- pating States, upon their request, in establishing the NRM.

11.2 Tasking the OSCE Strategic Police Matters Unit, together with the ODIHR, with the further development of guidelines or a manual on the identification of suspected victims and of evidence of THB, in order to assist participating States, as appropriate.

(…)

14. Training

52 OSCE Human Dimension Commitments pa rt I Partners in Implementation

(…)

14.2 Tasking the ODIHR with the collection and dissemination of information on meas- ures, training programmes and materials already in place in OSCE participating States.

15. Legislative measures

15.1 In co-ordination with the United Nations Office on Drugs and Crime, the Coun- cil of Europe and other relevant actors, the ODIHR will continue to assist participat- ing States, upon their request, in bringing their national legislation into compliance with international norms and standards, particularly by promoting a humanitarian and compassionate approach to the victims of THB.

VI. Follow-up and co-ordinating mechanisms

7. Tasks the ODIHR with rendering necessary technical assistance to participat- ing States, when appropriate, in developing National Anti-Trafficking Plans of Action, including legislative and other assistance measures aimed at effective prevention and combating trafficking and protection of victims;

(…)

9. Tasks the ODIHR with the further development of its clearing-house function for the exchange of information, contacts, materials and good practices and with the enhance- ment of its project activities.

VII. Additional Tasks Related to Combating Terrorism Bucharest 2001 (Annex to Decision 1 on Combating Terrorism; The Bucharest Plan of Action for Combating Terrorism) II. International legal obligations and political commitments

(…)

6. Office for Democratic Institutions and Human Rights (ODIHR): Will, on formal request by interested participating States and where appropriate, offer technical assist- ance/advice on legislative drafting necessary for the ratification of international instru- ments, in close co-operation with other organizations, including the United Nations Office for Drug Control and Crime Prevention (UNODCCP).

(…)

III. Preventive action against terrorism in the OSCE area

(…)

10. Institution building, strengthening the rule of law and state authorities: ODIHR: Will continue and increase efforts to promote and assist in building democratic institu- tions at the request of States, inter alia by helping to strengthen administrative capac-

OSCE Human Dimension Commitments 53 Implementation of Commitments pa rt I

ity, local and central government and parliamentary structures, the judiciary, ombuds- man institutions and civil society. Will facilitate exchanges of best practices and expe- rience between participating States in this regard. Will continue to develop projects to solidify democratic institutions, civil society and good governance.

(…)

Strengthening national anti-terrorism legislation: (…)

18. ODIHR: Will, on request by interested participating States and where appropriate, offer technical assistance/advice on the implementation of international anti-terrorism conventions and protocols as well as on the compliance of this legislation with interna- tional standards, in accordance with Permanent Council decisions, and will seek co- operation with other organizations, especially the UNODCCP, to this end. Will con- sider facilitating contacts between national experts to promote exchange of informa- tion and best practices on counter-terrorism legislation.

(…)

Supporting law enforcement and fighting organized crime: (…)

22. ODIHR: Will provide continued advice to participating States, at their request, on strengthening domestic legal frameworks and institutions that uphold the rule of law, such as law enforcement agencies, the judiciary and the prosecuting authorities, bar associations and defence attorneys. Will expand its efforts to combat trafficking in human beings and to support victims of trafficking. Will, where appropriate, support prison reform and improvements in criminal procedure.

B. The High Commissioner on National Minorities Helsinki 1992 (Decisions: II. CSCE High Commissioner on National Minorities) (1) The participating States decide to establish a High Commissioner on National Minorities.

Mandate

(2) The High Commissioner will act under the aegis of the CSO and will thus be an instrument of conflict prevention at the earliest possible stage.

(3) The High Commissioner will provide “early warning” and, as appropriate, “early action” at the earliest possible stage in regard to tensions involving national minority issues which have not yet developed beyond an early warning stage, but, in the judge- ment of the High Commissioner, have the potential to develop into a conflict within the CSCE area, affecting peace, stability or relations between participating States, requiring the attention of and action by the Council or the CSO.

54 OSCE Human Dimension Commitments pa rt I Partners in Implementation

(4) Within the mandate, based on CSCE principles and commitments, the High Com- missioner will work in confidence and will act independently of all parties directly involved in the tensions.

(5a) The High Commissioner will consider national minority issues occurring in the State of which the High Commissioner is a national or a resident, or involving a national minority to which the High Commissioner belongs, only if all parties directly involved agree, including the State concerned.

(5b) The High Commissioner will not consider national minority issues in situations involving organized acts of terrorism.

(5c) Nor will the High Commissioner consider violations of CSCE commitments with regard to an individual person belonging to a national minority.

(6) In considering a situation, the High Commissioner will take fully into account the availability of democratic means and international instruments to respond to it, and their utilization by the parties involved.

(7) When a particular national minority issue has been brought to the attention of the CSO, the involvement of the High Commissioner will require a request and a specific mandate from the CSO.

Profile, appointment, support

(8) The High Commissioner will be an eminent international personality with long- standing relevant experience from whom an impartial performance of the function may be expected.

(9) The High Commissioner will be appointed by the Council by consensus upon the recommendation of the CSO for a period of three years, which may be extended for one further term of three years only.

(10) The High Commissioner will draw upon the facilities of the ODIHR in Warsaw, and in particular upon the information relevant to all aspects of national minority ques- tions available at the ODIHR.

Early warning

(11) The High Commissioner will:

(11a) collect and receive information regarding national minority issues from sources described below (see Supplement paragraphs (23)-(25));

(11b) assess at the earliest possible stage the role of the parties directly concerned, the nature of the tensions and recent developments therein and, where possible, the poten- tial consequences for peace and stability within the CSCE area;

OSCE Human Dimension Commitments 55 Implementation of Commitments pa rt I

(11c) to this end, be able to pay a visit, in accordance with paragraph (17) and Supple- ment paragraphs (27)-(30), to any participating State and communicate in person, sub- ject to the provisions of paragraph (25), with parties directly concerned to obtain first- hand information about the situation of national minorities.

(12) The High Commissioner may during a visit to a participating State, while obtaining first-hand information from all parties directly involved, discuss the questions with the parties, and where appropriate promote dialogue, confidence and co-operation between them.

Provision of early warning

(13) If, on the basis of exchanges of communications and contacts with relevant parties, the High Commissioner concludes that there is a prima facie risk of potential conflict (as set out in paragraph (3)) he/she may issue an early warning, which will be communi- cated promptly by the Chairman-in-Office to the CSO.

(14) The Chairman-in-Office will include this early warning in the agenda for the next meeting of the CSO. If a State believes that such an early warning merits prompt con- sultation, it may initiate the procedure set out in Annex 2 of the Summary of Conclu- sions of the Berlin Meeting of the Council (“Emergency Mechanism”).

(15) The High Commissioner will explain to the CSO the reasons for issuing the early warning.

Early action

(16) The High Commissioner may recommend that he/she be authorized to enter into further contact and closer consultations with the parties concerned with a view to pos- sible solutions, according to a mandate to be decided by the CSO. The CSO may decide accordingly.

Accountability

(17) The High Commissioner will consult the Chairman-in-Office prior to a departure for a participating State to address a tension involving national minorities. The Chair- man-in-Office will consult, in confidence, the participating State(s) concerned and may consult more widely.

(18) After a visit to a participating State, the High Commissioner will provide strictly confidential reports to the Chairman-in-Office on the findings and progress of the High Commissioner’s involvement in a particular question.

(19) After termination of the involvement of the High Commissioner in a particular issue, the High Commissioner will report to the Chairman-in-Office on the findings, results and conclusions. Within a period of one month, the Chairman-in-Office will consult, in confidence, on the findings, results and conclusions the participating State(s)

56 OSCE Human Dimension Commitments pa rt I Partners in Implementation

concerned and may consult more widely. Thereafter the report, together with possible comments, will be transmitted to the CSO.

(20) Should the High Commissioner conclude that the situation is escalating into a con- flict, or if the High Commissioner deems that the scope for action by the High Com- missioner is exhausted, the High Commissioner shall, through the Chairman-in-Office, so inform the CSO

(21) Should the CSO become involved in a particular issue, the High Commissioner will provide information and, on request, advice to the CSO, or to any other institution or organization which the CSO may invite, in accordance with the provisions of Chapter III of this document, to take action with regard to the tensions or conflict.

(22) The High Commissioner, if so requested by the CSO and with due regard to the requirement of confidentiality in his/her mandate, will provide information about his/ her activities at CSCE implementation meetings on Human Dimension issues.

Supplement

Sources of information about national minority issues

(23) The High Commissioner may:

(23a) collect and receive information regarding the situation of national minorities and the role of parties involved therein from any source, including the media and non-gov- ernmental organizations with the exception referred to in paragraph (25);

(23b) receive specific reports from parties directly involved regarding developments concerning national minority issues. These may include reports on violations of CSCE commitments with respect to national minorities as well as other violations in the con- text of national minority issues.

(24) Such specific reports to the High Commissioner should meet the following require- ments:

• they should be in writing, addressed to the High Commissioner as such and signed with full names and addresses;

• they should contain a factual account of the developments which are relevant to the situation of persons belonging to national minorities and the role of the parties involved therein, and which have taken place recently, in principle not more than 12 months previously. The reports should contain information which can be sufficiently substantiated.

(25) The High Commissioner will not communicate with and will not acknowledge communications from any person or organization which practises or publicly condones terrorism or violence.

OSCE Human Dimension Commitments 57 Implementation of Commitments pa rt I

Parties directly concerned

(26) Parties directly concerned in tensions who can provide specific reports to the High Commissioner and with whom the High Commissioner will seek to communicate in person during a visit to a participating State are the following:

(26a) governments of participating States, including, if appropriate, regional and local authorities in areas in which national minorities reside;

(26b) representatives of associations, non-governmental organizations, religious and other groups of national minorities directly concerned and in the area of tension, which are authorized by the persons belonging to those national minorities to represent them. Conditions for travel by the High Commissioner

(27) Prior to an intended visit, the High Commissioner will submit to the participat- ing State concerned specific information regarding the intended purpose of that visit. Within two weeks the State(s) concerned will consult with the High Commissioner on the objectives of the visit, which may include the promotion of dialogue, confidence and co-operation between the parties. After entry the State concerned will facilitate free travel and communication of the High Commissioner subject to the provisions of para- graph (25) above.

(28) If the State concerned does not allow the High Commissioner to enter the country and to travel and communicate freely, the High Commissioner will so inform the CSO.

(29) In the course of such a visit, subject to the provision of paragraph (25) the High Commissioner may consult the parties involved, and may receive information in confi- dence from any individual, group or organization directly concerned on questions the High Commissioner is addressing. The High Commissioner will respect the confiden- tial nature of the information

(30) The participating States will refrain from taking any action against persons, organ- izations or institutions on account of their contact with the High Commissioner.

High Commissioner and involvement of experts

(31) The High Commissioner may decide to request assistance from not more than three experts with relevant expertise in specific matters on which brief, specialized investiga- tion and advice are required.

(32) If the High Commissioner decides to call on experts, the High Commissioner will set a clearly defined mandate and time-frame for the activities of the experts.

(33) Experts will only visit a participating State at the same time as the High Commis- sioner. Their mandate will be an integral part of the mandate of the High Commissioner and the same conditions for travel will apply.

58 OSCE Human Dimension Commitments pa rt I Partners in Implementation

(34) The advice and recommendations requested from the experts will be submitted in confidence to the High Commissioner, who will be responsible for the activities and for the reports of the experts and who will decide whether and in what form the advice and recommendations will be communicated to the parties concerned. They will be non- binding. If the High Commissioner decides to make the advice and recommendations available, the State(s) concerned will be given the opportunity to comment.

(35) The experts will be selected by the High Commissioner with the assistance of the ODIHR from the resource list established at the ODIHR as laid down in the Document of the Moscow Meeting.

(36) The experts will not include nationals or residents of the participating State concerned, or any person appointed by the State concerned, or any expert against whom the participating State has previously entered reservations. The experts will not include the participating State's own nationals or residents or any of the persons it appointed to the resource list, or more than one national or resident of any particu- lar State.

Stockholm 1992 (Decisions: 3. High Commissioner on National Minorities) (…) The Ministers expressed their support for the High Commissioner and their readi- ness to co-operate with him in the execution of his complex but crucial task of identi- fying and containing at the earliest possible stage tensions involving national minority issues which have the potential to develop into a conflict within the CSCE area.

The Ministers encouraged the High Commissioner to analyse carefully potential areas of tension, to visit any participating State and to undertake wide-ranging discussions at all levels with parties directly involved in the issues. In this context, the High Com- missioner may discuss the questions with the parties and, where appropriate, promote dialogue, confidence and co-operation between them at all levels, to enhance political solutions in line with CSCE principles and commitments.

The Ministers undertook to provide the High Commissioner with relevant information at their disposal on national minority issues, fully respecting the independence of the High Commissioner in accordance with the mandate.

Rome 1993 (Decisions: III. High Commissioner on National Minorities) Bearing in mind the close interrelationship between questions relating to national minorities and conflict prevention, the Ministers encouraged the High Commissioner on National Minorities (HCNM) to pursue his activities under his Mandate (…) The Ministers stressed the importance of participating States co-operating fully with the High Commissioner and supporting follow-up and implementation of his recommen- dations (…)

Bucharest 2001 (Decisions: Decision No. 5) The Ministerial Council,

OSCE Human Dimension Commitments 59 Implementation of Commitments pa rt I

(…)

Calls on OSCE institutions, particularly the ODIHR, the High Commissioner on National Minorities, and the Representative on Freedom of the Media, to pay increased attention to manifestations of aggressive nationalism, racism, chauvinism, xenophobia, anti-semitism and violent extremism, to countering intolerance and discrimination on the ground of racial or ethnic origin, religious, political or other opinion and to foster- ing respect for rule of law, democratic values, human rights and fundamental freedoms, including freedom of expression, thought, conscience, religion or belief;

Maastricht 2003 (Decisions: Annex to Decision No. 3/03: Action Plan on Improving the Situation of Roma and Sinti within the OSCE Area) III Combating racism and discrimination

Legislation and law enforcement

Recommended action by OSCE institutions and structures:

(…)

21. The HCNM, within its mandate, will continue to follow the development of anti-dis- crimination legislation and provide advice and assistance to the participating States in this respect, as appropriate.

Police

Recommended action by OSCE institutions and structures:

(…)

35. The HCNM, the ODIHR-CPRSI and the Strategic Police Matters Unit will assist the participating States in developing codes of conduct to prevent racial profiling and improve interethnic relations.

Mass Media

Recommended action by OSCE institutions and structures:

(…)

42. The HCNM will continue to elaborate and disseminate guidelines for policy-makers on the use of the State broadcast media in multicultural communities, aimed, inter alia, at encouraging support for minority broadcasters, including Roma and Sinti broadcast- ers, and improving their access to the media.

V. Improving access to education

Recommended action by OSCE institutions and structures:

60 OSCE Human Dimension Commitments pa rt I Partners in Implementation

85. The HCNM will encourage participating States to comply with their commitments to provide free and equal access to public education to all members of society, and will encourage them to take steps to improve the situation of Roma and Sinti people in this respect.

86. The HCNM will continue to provide guidance on educational models, curriculum content and the teaching of, or in, the mother tongue, including the Romani language.

VI. Enhancing participation in public and political life

Recommended action by OSCE institutions and structures:

(…)

104. The HCNM, within its mandate, will continue to advise States on appropriate ways and means of facilitating the participation of Roma and Sinti people in all areas of pub- lic life.

VII. Roma and Sinti in crisis and post-crisis situations

(…)

Recommended action by OSCE institutions and structures:

(…)

117. The HCNM will continue to exercise his mandate of conflict prevention at the ear- liest possible stage.

Sofia 2004 (Decisions: Annex to Decision No. 14/04, 2004 OSCE Action Plan for the Pro- motion of Gender Equality) V. Supporting OSCE participating States in implementing relevant commitments to promoting equality between women and men

(…)

(d) Ensuring equal opportunity for participation of women in political and public life

(…)

• The High Commissioner on National Minorities (HCNM) will address specific issues relating to the participation in public and private life of women belonging to national minorities and, in policies and projects developed by his/her office, take steps neces- sary to counter the double discrimination suffered by these women, as appropriate within the context of his/her conflict prevention mandate;

OSCE Human Dimension Commitments 61 Implementation of Commitments pa rt I

C. The Representative on Freedom of the Media Copenhagen 1997 (Annex 1: Permanent Council Decision No. 193, Mandate of the OSCE Representative on Freedom of the Media) 1. The participating States reaffirm the principles and commitments they have adhered to in the field of free media. They recall in particular that freedom of expression is a fun- damental and internationally recognized human right and a basic component of a dem- ocratic society and that free, independent and pluralistic media are essential to a free and open society and accountable systems of government. Bearing in mind the princi- ples and commitments they have subscribed to within the OSCE, and fully committed to the implementation of paragraph 11 of the Lisbon Summit Declaration, the partici- pating States decide to establish, under the aegis of the Permanent Council, an OSCE Representative on Freedom of the Media. The objective is to strengthen the implemen- tation of relevant OSCE principles and commitments as well as to improve the effec- tiveness of concerted action by the participating States based on their common values. The participating States confirm that they will co-operate fully with the OSCE Repre- sentative on Freedom of the Media. He or she will assist the participating States, in a spirit of co-operation, in their continuing commitment to the furthering of free, inde- pendent and pluralistic media.

2. Based on OSCE principles and commitments, the OSCE Representative on Freedom of the Media will observe relevant media developments in all participating States and will, on this basis, and in close co-ordination with the Chairman-in-Office, advocate and promote full compliance with OSCE principles and commitments regarding free- dom of expression and free media. In this respect he or she will assume an early-warn- ing function. He or she will address serious problems caused by, inter alia, obstruc- tion of media activities and unfavourable working conditions for journalists. He or she will closely co-operate with the participating States, the Permanent Council, the Office for Democratic Institutions and Human Rights (ODIHR), the High Commissioner on National Minorities and, where appropriate, other OSCE bodies, as well as with national and international media associations.

3. The OSCE Representative on Freedom of the Media will concentrate, as outlined in this paragraph, on rapid response to serious non-compliance with OSCE principles and commitments by participating States in respect of freedom of expression and free media. In the case of an allegation of serious non-compliance therewith, the OSCE Rep- resentative on Freedom of the Media will seek direct contacts, in an appropriate man- ner, with the participating State and with other parties concerned, assess the facts, assist the participating State, and contribute to the resolution of the issue. He or she will keep the Chairman-in-Office informed about his or her activities and report to the Per- manent Council on their results, and on his or her observations and recommendations.

4. The OSCE Representative on Freedom of the Media does not exercise a juridical func- tion, nor can his or her involvement in any way prejudge national or international legal proceedings concerning alleged human rights violations. Equally, national or interna-

62 OSCE Human Dimension Commitments pa rt I Partners in Implementation

tional proceedings concerning alleged human rights violations will not necessarily pre- clude the performance of his or her tasks as outlined in this mandate.

5. The OSCE Representative on Freedom of the Media may collect and receive informa- tion on the situation of the media from all bona fide sources. He or she will in partic- ular draw on information and assessments provided by the ODIHR. The OSCE Repre- sentative on Freedom of the Media will support the ODIHR in assessing conditions for the functioning of free, independent and pluralistic media before, during and after elec- tions.

6. The OSCE Representative on Freedom of the Media may at all times collect and receive from participating States and other interested parties (e.g. from organizations or institutions, from media and their representatives, and from relevant NGOs) requests, suggestions and comments related to strengthening and further developing compliance with relevant OSCE principles and commitments, including alleged serious instances of intolerance by participating States which utilize media in violation of the principles referred to in the Budapest Document, Chapter VIII, paragraph 25, and in the Deci- sions of the Rome Council Meeting, Chapter X. He or she may forward requests, sug- gestions and comments to the Permanent Council, recommending further action where appropriate.

7. The OSCE Representative on Freedom of the Media will also routinely consult with the Chairman-in-Office and report on a regular basis to the Permanent Council. He or she may be invited to the Permanent Council to present reports, within this mandate, on specific matters related to freedom of expression and free, independent and plural- istic media. He or she will report annually to the Implementation Meeting on Human Dimension Issues or to the OSCE Review Meeting on the status of the implementa- tion of OSCE principles and commitments in respect of freedom of expression and free media in OSCE participating States.

8. The OSCE Representative on Freedom of the Media will not communicate with and will not acknowledge communications from any person or organization which practises or publicly condones terrorism or violence.

9. The OSCE Representative on Freedom of the Media will be an eminent international personality with long-standing relevant experience from whom an impartial perform- ance of the function would be expected. In the performance of his or her duty the OSCE Representative on Freedom of the Media will be guided by his or her independent and objective assessment regarding the specific paragraphs composing this mandate.

10. The OSCE Representative on Freedom of the Media will consider serious cases aris- ing in the context of this mandate and occurring in the participating State of which he or she is a national or resident if all the parties directly involved agree, including the participating State concerned. In the absence of such agreement, the matter will be referred to the Chairman-in-Office, who may appoint a Special Representative to address this particular case.

OSCE Human Dimension Commitments 63 Implementation of Commitments pa rt I

11. The OSCE Representative on Freedom of the Media will co-operate, on the basis of regular contacts, with relevant international organizations, including the United Nations and its specialized agencies and the Council of Europe, with a view to enhanc- ing co-ordination and avoiding duplication.

12. The OSCE Representative on Freedom of the Media will be appointed in accord- ance with OSCE procedures by the Ministerial Council upon the recommendation of the Chairman-in-Office after consultation with the participating States. He or she will serve for a period of three years which may be extended under the same procedure for one further term of three years.

(…)

14. The Office of the OSCE Representative on Freedom of the Media will be located in Vienna.

Bucharest 2001 (Annex to Decision 1 on Combating Terrorism; The Bucharest Plan of Action for Combating Terrorism) 11. Promoting human rights, tolerance and multi-culturalism: (…)

12. Representative on Freedom of the Media: Will consider developing projects aimed at supporting tolerance towards people of other convictions and beliefs through the use of the media. Will promote measures aimed at preventing and fighting aggressive nation- alism, racism, chauvinism, xenophobia and anti-Semitism in the media. Will continue to encourage pluralistic debate and increased media attention to promoting tolerance of ethnic, religious, linguistic and cultural diversity and will, in this context, promote broad public access to media as well as monitor hate speech.

(…)

19. Supporting law enforcement and fighting organized crime: (…)

23. Representative on Freedom of the Media: Will co-operate in supporting, on request, the drafting of legislation on the prevention of the abuse of information technology for terrorist purposes, ensuring that such laws are consistent with commitments regarding freedom of expression and the free flow of information.

Bucharest 2001 (Decisions: Decision No. 5) The Ministerial Council,

(…)

Calls on OSCE institutions, particularly the ODIHR, the High Commissioner on National Minorities, and the Representative on Freedom of the Media, to pay increased attention to manifestations of aggressive nationalism, racism, chauvinism, xenophobia, anti-semitism and violent extremism, to countering intolerance and discrimination on the ground of racial or ethnic origin, religious, political or other opinion and to foster-

64 OSCE Human Dimension Commitments pa rt I Partners in Implementation

ing respect for rule of law, democratic values, human rights and fundamental freedoms, including freedom of expression, thought, conscience, religion or belief;

Maastricht 2003 (Decisions: Annex to Decision No. 3/03, Action Plan on Improving the Situation of Roma and Sinti within the OSCE Area) Mass Media

Recommended action by OSCE institutions and structures:

39. In co-operation with the ODIHR as well as relevant international organizations, the Representative on Freedom of the Media (RFOM) should consider how the OSCE could contribute to the establishment of a European Roma Radio which would broad- cast throughout Europe. The ODIHR and the RFOM should organize public debates, anti-discrimination campaigns and joint training programmes with and for the media.

40. The RFOM should consider facilitating training seminars for Roma journalists.

41. The ODIHR-CPRSI and the RFOM will organize round tables with journalists on the image that Roma and Sinti communities have in society.

Sofia 2004 (Decisions: Annex to Decision No. 12/04 on Tolerance and Non-discrimina- tion; Permanent Council Decision No. 633: Promoting Tolerance and Media Freedom on the Internet) 4. The OSCE Representative on Freedom of the Media will continue an active role in promoting both freedom of expression and access to the Internet and will continue to observe relevant developments in all the participating States. The Representative will advocate and promote OSCE principles and commitments. This will include early warning when laws or other measures prohibiting speech motivated by racist, xeno- phobic, anti-Semitic or other related bias are enforced in a discriminatory or selective manner for political purposes which can lead to impeding the expression of alternative opinions and views;

Sofia 2004 (Decisions: Annex to Decision No. 14/04, 2004 OSCE Action Plan for the Pro- motion of Gender Equality) V. Supporting OSCE participating States in implementing relevant commitments to promoting equality between women and men

(…)

(d) Ensuring equal opportunity for participation of women in political and public life — The OSCE Representative on Freedom of the Media (RFOM) will be alert to allega- tions of serious intolerance towards women and incitement to gender discrimination in or by the media in participating States in accordance with Chapter 6 of the mandate of the RFOM. The Representative will inform the participating States of such cases in his/ her regular reports.

OSCE Human Dimension Commitments 65 3. Restrictions and Derogations

3.1 Scope and Character of Legitimate Restrictions

Vienna 1989 (Questions Relating to Security in Europe: Principles) (21) The participating States will ensure that the exercise of the above-mentioned rights will not be subject to any restrictions except those which are provided by law and are consistent with their obligations under international law, in particular the International Covenant on Civil and Political Rights, and with their international commitments, in particular the Universal Declaration of Human Rights. These restrictions have the character of exceptions. The participating States will ensure that these restrictions are not abused and are not applied in an arbitrary manner, but in such a way that the effec- tive exercise of these rights is ensured.

Copenhagen 1990 (16) The participating States

(…)

(16.3) - stress that no exceptional circumstances whatsoever, whether a state of war or a threat of war, internal political instability or any other public emergency, may be invoked as a justification of torture;

(…)

(24) (…) Any restriction on rights and freedoms must, in a democratic society, relate to one of the objectives of the applicable law and be strictly proportionate to the aim of that law.

OSCE Human Dimension Commitments 67 Restrictions and Derogations pa rt I

3.2 Derogations from Obligations During a State of Public Emergency

Copenhagen 1990 (16) The participating States

(16.3) - stress that no exceptional circumstances whatsoever, whether a state of war or a threat of war, internal political instability or any other public emergency, may be invoked as a justification of torture;

(…)

(24) (…) Any restriction on rights and freedoms must, in a democratic society, relate to one of the objectives of the applicable law and be strictly proportionate to the aim of that law.

(25) The participating States confirm that any derogations from obligations relating to human rights and fundamental freedoms during a state of public emergency must remain strictly within the limits provided for by international law, in particular the rel- evant international instruments by which they are bound, especially with respect to rights from which there can be no derogation. They also reaffirm that

(25.1) - measures derogating from such obligations must be taken in strict conformity with the procedural requirements laid down in those instruments;

(25.2) - the imposition of a state of public emergency must be proclaimed officially, pub- licly, and in accordance with the provisions laid down by law;

(25.3) - measures derogating from obligations will be limited to the extent strictly required by the exigencies of the situation;

(25.4) - such measures will not discriminate solely on the grounds of race, colour, sex, language, religion, social origin or of belonging to a minority.

Moscow 1991 (28) The participating States consider it important to protect human rights and funda- mental freedoms during a state of public emergency, to take into account the relevant provisions of the Document of the Copenhagen Meeting, and to observe the interna- tional conventions to which they are parties.

(28.1) The participating States reaffirm that a state of public emergency is justified only by the most exceptional and grave circumstances, consistent with the State’s interna- tional obligations and CSCE commitments. A state of public emergency may not be used to subvert the democratic constitutional order, nor aim at the destruction of inter- nationally recognized human rights and fundamental freedoms. If recourse to force cannot be avoided, its use must be reasonable and limited as far as possible.

68 OSCE Human Dimension Commitments pa rt I Derogations from Obligations During a State of Public Emergency

(28.2) A state of public emergency may be proclaimed only by a constitutionally lawful body, duly empowered to do so. In cases where the decision to impose a state of public emergency may be lawfully taken by the executive authorities, that decision should be subject to approval in the shortest possible time or to control by the legislature.

(28.3) The decision to impose a state of public emergency will be proclaimed officially, publicly, and in accordance with provisions laid down by law. The decision will, where possible, lay down territorial limits of a state of public emergency. The State concerned will make available to its citizens information, without delay, about which measures have been taken. The state of public emergency will be lifted as soon as possible and will not remain in force longer than strictly required by the exigencies of the situation.

(28.4) A de facto imposition or continuation of a state of public emergency not in accord- ance with provisions laid down by law is not permissible.

(28.5) The participating States will endeavour to ensure that the normal functioning of the legislative bodies will be guaranteed to the highest possible extent during a state of public emergency.

(…)

(28.7) The participating States will endeavour to refrain from making derogations from those obligations from which, according to international conventions to which they are parties, derogation is possible under a state of public emergency. Measures derogating from such obligations … will neither go further nor remain in force longer than strictly required by the exigencies of the situation; they are by nature exceptional and should be interpreted and applied with restraint (…)

(28.8) The participating States will endeavour to ensure that the legal guarantees nec- essary to uphold the rule of law will remain in force during a state of public emergency. They will endeavour to provide in their law for control over the regulations related to the state of public emergency, as well as the implementation of such regulations.

(28.9) The participating States will endeavour to maintain freedom of expression and freedom of information, consistent with their international obligations and commit- ments, with a view to enabling public discussion on the observance of human rights and fundamental freedoms as well as on the lifting of the state of public emergency. They will, in conformity with international standards regarding the freedom of expression, take no measures aimed at barring journalists from the legitimate exercise of their pro- fession other than those strictly required by the exigencies of the situation.

(28.10) When a state of public emergency is declared or lifted in a participating State, the State concerned will immediately inform the CSCE Institution* of this decision, as well as of any derogation made from the State’s international human rights obligations. The Institution will inform the other participating States without delay.

* The Council will take the decision on the institution.

OSCE Human Dimension Commitments 69  II. Specific Human Dimension Commitments 1. Commitments Related to the Right of Peoples to Self-determination

Helsinki 1975 (Questions Relating to Security in Europe: 1.(a) Declaration on Principles Guiding Relations between Participating States – Principle VIII) The participating States will respect the equal rights of peoples and their right to self- determination, acting at all times in conformity with the purposes and principles of the Charter of the United Nations and with the relevant norms of international law, includ- ing those relating to territorial integrity of States. By virtue of the principle of equal rights and self-determination of peoples, all peoples always have the right, in full free- dom, to determine, when and as they wish, their internal and external political sta- tus, without external interference, and to pursue as they wish their political, economic, social and cultural development. The participating States reaffirm the universal signifi- cance of respect for and effective exercise of equal rights and self-determination of peo- ples for the development of friendly relations among themselves as among all States; they also recall the importance of the elimination of any form of violation of this prin- ciple.

Vienna 1989 (Questions Relating to Security in Europe: Principles) (4) [The participating States] also confirm that, by virtue of the principle of equal rights and self-determination of peoples and in conformity with the relevant provisions of the Final Act, all peoples always have the right, in full freedom, to determine, when and as they wish, their internal and external political status, without external interference, and to pursue as they wish their political, economic, social and cultural development.

OSCE Human Dimension Commitments 73 2. Commitments Related to Structural Components of a Democratic Society

2.1 General Provisions

Bonn 1990 (Preamble) (…) the participating States,

Recognizing the relationship between political pluralism and market economies, and being committed to the principles concerning:

• Multiparty democracy based on free, periodic and genuine elections;

• The rule of law and equal protection under the law for all, based on respect for human rights and effective, accessible and just legal systems;

• Economic activity that accordingly upholds human dignity and is free from forced labour, discrimination against workers on grounds of race, sex, language, political opinion or religion, or denial of the rights of workers freely to establish or join inde- pendent trade unions;

Will endeavour to achieve or maintain the following (…)

Copenhagen 1990 [The participating States] recognize that pluralistic democracy and the rule of law are essential for ensuring respect for all human rights and fundamental freedoms, the development of human contacts and the resolution of other issues of a related humani- tarian character. They therefore welcome the commitment expressed by all participat- ing States to the ideals of democracy and political pluralism as well as their common determination to build democratic societies based on free elections and the rule of law.

(…)

OSCE Human Dimension Commitments 75 Structural Components of a Democratic Society pa rt II

(6) The participating States declare that the will of the people, freely and fairly expressed through periodic and genuine elections, is the basis of the authority and legitimacy of all government (…) They recognize their responsibility to defend and protect, in accord- ance with their laws, their international human rights obligations and their interna- tional commitments, the democratic order freely established through the will of the people against the activities of persons, groups or organizations that engage in or refuse to renounce terrorism or violence aimed at the overthrow of that order or of that of another participating State.

Paris 1990 (A New Era of Democracy, Peace and Unity) We undertake to build, consolidate and strengthen democracy as the only system of government of our nations. In this endeavour, we will abide by the following:

Human rights and fundamental freedoms are the birthright of all human beings, are inalienable and are guaranteed by law. Their protection and promotion is the first responsibility of government. Respect for them is an essential safeguard against an over-mighty State. Their observance and full exercise are the foundation of freedom, justice and peace.

Democratic government is based on the will of the people, expressed regularly through free and fair elections. Democracy has as its foundation respect for the human person and the rule of law. Democracy is the best safeguard of freedom of expression, tolerance of all groups of society, and equality of opportunity for each person.

Democracy, with its representative and pluralist character, entails accountability to the electorate, the obligation of public authorities to comply with the law and justice admin- istered impartially. No one will be above the law.

(…)

Our States will co-operate and support each other with the aim of making democratic gains irreversible.

Moscow 1991 (17) The participating States

(17.1) - condemn unreservedly forces which seek to take power from a representative government of a participating State against the will of the people as expressed in free and fair elections and contrary to the justly established constitutional order;

(17.2) - will support vigorously, in accordance with the Charter of the United Nations, in case of overthrow or attempted overthrow of a legitimately elected government of a participating State by undemocratic means, the legitimate organs of that State uphold- ing human rights, democracy and the rule of law, recognizing their common commit- ment to countering any attempt to curb these basic values;

76 OSCE Human Dimension Commitments pa rt II Elections

Maastricht 2003 (OSCE Strategy to Address Threats to Security and Stability in the Twenty-First Century) 36. (…) Based on its human dimension commitments, the OSCE strives to promote con- ditions throughout its region in which all can fully enjoy their human rights and fun- damental freedoms under the protection of effective democratic institutions, due judi- cial process and the rule of law. This includes secure environments and institutions for peaceful debate and expression of interests by all individuals and groups of society. Civil society has an important role to play in this regard, and the OSCE will continue to sup- port and help strengthen civil society organizations.

Maastricht 2003 (OSCE Strategy Document for the Economic and Environmental Dimension) 2.2.1 Good public and corporate governance and strong institutions are essential foun- dations for a sound economy, which can attract investments, and thereby enable States to reduce poverty and inequality, to increase social integration and opportunities for all and to protect the environment. Good governance at all levels contributes to prosperity, stability and security. Peace, good international relations, the security and stability of the State and the security and safety of the individual within the State, based on the rule of law and respect for human rights, are crucial for the creation of the climate of confi- dence which is essential to ensure positive economic and social development.

2.2.2 Good governance is of critical importance for all the participating States, and we are agreed to work on a national basis, with the support of relevant international insti- tutions, to strengthen good governance in all its aspects and to develop methods of co- operation to assist each other in achieving it.

2.2.3 Achieving good governance requires a comprehensive and long-term strategic approach, so that successes in one area are not undermined by weaknesses in others. We will co-operate in the development of our strategies for good governance and will share experience regarding best practices.

2.2 Elections

See also: á Part I. 2.3.4 A: The Office for Democratic Institutions and Human Rights (ODIHR)

Copenhagen 1990 (5) [The participating States] solemnly declare that among those elements of justice which are essential to the full expression of the inherent dignity and of the equal and inalienable rights of all human beings are the following:

(5.1) - free elections that will be held at reasonable intervals by secret ballot or by equiv- alent free voting procedure, under conditions which ensure in practice the free expres- sion of the opinion of the electors in the choice of their representatives;

OSCE Human Dimension Commitments 77 Structural Components of a Democratic Society pa rt II

(…)

(6) The participating States declare that the will of the people, freely and fairly expressed through periodic and genuine elections, is the basis of the authority and legitimacy of all government. The participating States will accordingly respect the right of their citi- zens to take part in the governing of their country, either directly or through represent- atives freely chosen by them through fair electoral processes (…)

(7) To ensure that the will of the people serves as the basis of the authority of govern- ment, the participating States will

(7.1) - hold free elections at reasonable intervals, as established by law;

(7.2) - permit all seats in at least one chamber of the national legislature to be freely con- tested in a popular vote;

(7.3) - guarantee universal and equal suffrage to adult citizens;

(7.4) - ensure that votes are cast by secret ballot or by equivalent free voting procedure, and that they are counted and reported honestly with the official results made public;

(7.5) - respect the right of citizens to seek political or public office, individually or as representatives of political parties or organizations, without discrimination;

(7.6) - respect the right of individuals and groups to establish, in full freedom, their own political parties or other political organizations and provide such political parties and organizations with the necessary legal guarantees to enable them to compete with each other on a basis of equal treatment before the law and by the authorities;

(7.7) - ensure that law and public policy work to permit political campaigning to be con- ducted in a fair and free atmosphere in which neither administrative action, violence nor intimidation bars the parties and the candidates from freely presenting their views and qualifications, or prevents the voters from learning and discussing them or from casting their vote free of fear of retribution;

(7.8) - provide that no legal or administrative obstacle stands in the way of unimpeded access to the media on a non­discriminatory basis for all political groupings and individ- uals wishing to participate in the electoral process;

(7.9) - ensure that candidates who obtain the necessary number of votes required by law are duly installed in office and are permitted to remain in office until their term expires or is otherwise brought to an end in a manner that is regulated by law in conformity with democratic parliamentary and constitutional procedures.

(8) The participating States consider that the presence of observers, both foreign and domestic, can enhance the electoral process for States in which elections are taking place. They therefore invite observers from any other CSCE participating States and any appropriate private institutions and organizations who may wish to do so to observe

78 OSCE Human Dimension Commitments pa rt II Elections

the course of their national election proceedings, to the extent permitted by law. They will also endeavour to facilitate similar access for election proceedings held below the national level. Such observers will undertake not to interfere in the electoral proceed- ings.

Paris 1990 (A New Era of Democracy, Peace and Unity) We affirm that, without discrimination, everyone (…) has the right:

(…)

to participate in free and fair elections

(…)

We decide to establish an Office for Free Elections in Warsaw to facilitate contacts and the exchange of information on elections within participating States.

Lisbon 1996 (Summit Declaration) 9. (...) Among the acute problems within the human dimension, the continuing viola- tions of human rights, such as (...) electoral fraud (...) continue to endanger stability in the OSCE region. We are committed to continuing to address these problems.

Istanbul 1999 (Summit Declaration) 26. With a large number of elections ahead of us, we are committed to these being free and fair, and in accordance with OSCE principles and commitments. This is the only way in which there can be a stable basis for democratic development…we agree to fol- low up promptly ODIHR’s election assessments and recommendations (…) We are com- mitted to secure the full right of persons belonging to minorities to vote and to facil- itate the right of refugees to participate in elections held in their countries of origin. We pledge to ensure fair competition among candidates as well as parties, including through their access to the media and respect for the right of assembly.

Istanbul 1999 (Charter for European Security: III. Our Common Response) 25. We reaffirm our obligation to conduct free and fair elections in accordance with OSCE commitments, in particular the Copenhagen Document 1990. We recognize the assistance the ODIHR can provide to participating States in developing and implement- ing electoral legislation. In line with these commitments, we will invite observers to our elections from other participating States, the ODIHR, the OSCE Parliamentary Assem- bly and appropriate institutions and organizations that wish to observe our election proceedings (…)

Porto 2002 (Decisions: Decision No.7 on Election Commitments) The Ministerial Council,

OSCE Human Dimension Commitments 79 Structural Components of a Democratic Society pa rt II

Recalling the provisions of the 1990 Document of the Copenhagen Meeting of the Con- ference on the Human Dimension of the CSCE,

Noting that additional commitments…have supplemented those provisions,

Reaffirming the determination to implement these commitments,

Acknowledging that democratic elections can be conducted under a variety of electoral systems,

Recognizing the ODIHR’s expertise in assisting participating States in the implementa- tion of election-related commitments,

Taking into account PC Decision No. 509, on international standards and commit- ments: a practical guide to democratic elections best practice,

Calls upon participating States to strengthen their response to the ODIHR’s recom- mendations following election observations (…)

Maastricht 2003 (Decisions: Decision No. 5/03 on Elections) The Ministerial Council,

(…)

Welcoming the continuing efficient co-operation between the ODIHR and the OSCE Parliamentary Assembly in election monitoring,

Welcoming the document “Existing Commitments for Democratic Elections in OSCE Participating States: A Progress Report” (ODIHR.GAL/39/03), which was prepared by the ODIHR and submitted to the participating States in June of this year,

Recognizing in particular the need for confidence by the electorate in the entire process, for transparency of election procedures, and for accountability on the part of authori- ties conducting elections, calls upon participating States to further enhance their co- operation with the ODIHR in this field,

Tasks the ODIHR to consider ways to improve the effectiveness of its assistance to par- ticipating States in following up recommendations made in ODIHR election-observa- tion reports (…)

2.3 Democratic Institutions

2.3.1 General Provisions Copenhagen 1990 (3) [The participating States] reaffirm that democracy is an inherent element of the rule of law. They recognize the importance of pluralism with regard to political organiza- tions.

80 OSCE Human Dimension Commitments pa rt II Democratic Institutions

(4) They confirm that they will respect each other’s right freely to choose and develop, in accordance with international human rights standards, their political, social, eco- nomic and cultural systems. In exercising this right, they will ensure that their laws, regulations, practices and policies conform with their obligations under international law and are brought into harmony with the provisions of the Declaration on Principles and other CSCE commitments.

(5) They solemnly declare that among those elements of justice which are essential to the full expression of the inherent dignity and of the equal and inalienable rights of all human beings are the following:

(5.1) - free elections that will be held at reasonable intervals by secret ballot or by equiv- alent free voting procedure, under conditions which ensure in practice the free expres- sion of the opinion of the electors in the choice of their representatives;

(5.2) - a form of government that is representative in character, in which the executive is accountable to the elected legislature or the electorate;

(5.3) - the duty of the government and public authorities to comply with the constitu- tion and to act in a manner consistent with law;

(5.4) - a clear separation between the State and political parties; in particular, political parties will not be merged with the State;

(5.5) - the activity of the government and the administration as well as that of the judi- ciary will be exercised in accordance with the system established by law. Respect for that system must be ensured;

(5.6) - military forces and the police will be under the control of, and accountable to, the civil authorities;

(…)

(5.8) - legislation, adopted at the end of a public procedure, and regulations will be pub- lished, that being the condition for their applicability. Those texts will be accessible to everyone;

(6) The participating States declare that the will of the people, freely and fairly expressed through periodic and genuine elections, is the basis of the authority and legitimacy of all government. The participating States will accordingly respect the right of their cit- izens to take part in the governing of their country, either directly or through repre- sentatives freely chosen by them through fair electoral processes. They recognize their responsibility to defend and protect, in accordance with their laws, their international human rights obligations and their international commitments, the democratic order freely established through the will of the people against the activities of persons, groups or organizations that engage in or refuse to renounce terrorism or violence aimed at the overthrow of that order or of that of another participating State.

OSCE Human Dimension Commitments 81 Structural Components of a Democratic Society pa rt II

(7) To ensure that the will of the people serves as the basis of the authority of govern- ment, the participating States will

(…)

(7.2) - permit all seats in at least one chamber of the national legislature to be freely con- tested in a popular vote;

(…)

(7.9) - ensure that candidates who obtain the necessary number of votes required by law are duly installed in office and are permitted to remain in office until their term expires or is otherwise brought to an end in a manner that is regulated by law in conformity with democratic parliamentary and constitutional procedures.

(…)

(26) The participating States recognize that vigorous democracy depends on the exist- ence as an integral part of national life of democratic values and practices as well as an extensive range of democratic institutions. They will therefore encourage, facilitate and, where appropriate, support practical co-operative endeavours and the sharing of infor- mation, ideas and expertise among themselves and by direct contacts and co-operation between individuals, groups and organizations in areas including the following:

• constitutional law, reform and development;

• electoral legislation, administration and observation;

• establishment and management of courts and legal systems;

• the development of an impartial and effective public service where recruitment and advancement are based on a merit system;

• law enforcement;

• local government and decentralization;

• access to information and protection of privacy;

• developing political parties and their role in pluralistic societies;

• free and independent trade unions;

• co-operative movements;

• developing other forms of free associations and public interest groups;

• journalism, independent media, and intellectual and cultural life;

82 OSCE Human Dimension Commitments pa rt II Democratic Institutions

• the teaching of democratic values, institutions and practices in educational institu- tions and the fostering of an atmosphere of free enquiry.

Such endeavours may cover the range of co-operation encompassed in the human dimension of the CSCE, including training, exchange of information, books and instructional materials, co-operative programmes and projects, academic and profes- sional exchanges and conferences, scholarships, research grants, provision of expertise and advice, business and scientific contacts and programmes.

(27) The participating States will also facilitate the establishment and strengthening of independent national institutions in the area of human rights and the rule of law, which may also serve as focal points for co-ordination and collaboration between such institu- tions in the participating States. They propose that co-operation be encouraged between parliamentarians from participating States, including through existing inter-parliamen- tary associations and, inter alia, through joint commissions, television debates involv- ing parliamentarians, meetings and round-table discussions. They will also encourage existing institutions, such as organizations within the United Nations system and the Council of Europe, to continue and expand the work they have begun in this area.

Moscow 1991 (18.1) Legislation will be formulated and adopted as the result of an open process reflect- ing the will of the people, either directly or through their elected representatives.

2.3.2 Decentralized Government and Special Structures and Bodies Geneva 1991 (IV) Aware of the diversity and varying constitutional systems among them, which make no single approach necessarily generally applicable, the participating States note with interest that positive results have been obtained by some of them in an appropriate democratic manner by, inter alia:

• advisory and decision-making bodies in which minorities are represented, in

• particular with regard to education, culture and religion;

• elected bodies and assemblies of national minority affairs;

• local and autonomous administration, as well as autonomy on a territorial

• basis, including the existence of consultative, legislative and executive bodies

• chosen through free and periodic elections;

• self-administration by a national minority of aspects concerning its identity in

• situations where autonomy on a territorial basis does not apply;

• decentralized or local forms of government;

OSCE Human Dimension Commitments 83 Structural Components of a Democratic Society pa rt II

Helsinki 1992 (Decisions: VI. The Human Dimension) The participating States

(53) Will endeavour, in order to strengthen democratic participation and institution building and in developing co-operation among them, to share their respective experi- ence on the functioning of democracy at a local and regional level, and welcome against this background the Council of Europe information and education network in this field;

(54) Will facilitate contacts and encourage various forms of co-operation between bod- ies at a local and regional level.

2.3.3 Democratic Civilian Control of Military, Paramilitary, and Internal Security Forces; Intelligence Services; and the Police Copenhagen 1990 (5) [The participating States] solemnly declare that among those elements of justice which are essential to the full expression of the inherent dignity and of the equal and inalienable rights of all human beings are the following:

(…)

(5.6) - military forces and the police will be under the control of, and accountable to, the civil authorities;

Moscow 1991 (25) The participating States will

(25.1) - ensure that their military and paramilitary forces, internal security and intel- ligence services, and the police are subject to the effective direction and control of the appropriate civil authorities;

(25.2) - maintain and, where necessary, strengthen executive control over the use of military and paramilitary forces as well as the activities of the internal security and intelligence services and the police;

(25.3) - take appropriate steps to create, wherever they do not already exist, and main- tain effective arrangements for legislative supervision of all such forces, services and activities.

Budapest 1994 (Decisions: IV. Code of Conduct on Politico-Military Aspects of Security) 20. The participating States consider the democratic political control of military, para- military and internal security forces as well as of intelligence services and the police to be an indispensable element of stability and security. They will further the integration of their armed forces with civil society as an important expression of democracy.

84 OSCE Human Dimension Commitments pa rt II Democratic Institutions

21. Each participating State will at all times provide for and maintain effective guidance to and control of its military, paramilitary and security forces by constitutionally estab- lished authorities vested with democratic legitimacy. Each participating State will pro- vide controls to ensure that such authorities fulfil their constitutional and legal respon- sibilities. They will clearly define the roles and missions of such forces and their obliga- tion to act solely within the constitutional framework.

22. Each participating State will provide for its legislative approval of defence expendi- tures. Each participating State will, with due regard to national security requirements, exercise restraint in its military expenditures and provide for transparency and public access to information related to the armed forces.

23. Each participating State, while providing for the individual service member’s exer- cise of his or her civil rights, will ensure that its armed forces as such are politically neu- tral.

24. Each participating State will provide and maintain measures to guard against acci- dental or unauthorized use of military means.

25. The participating States will not tolerate or support forces that are not accountable to or controlled by their constitutionally established authorities. If a participating State is unable to exercise its authority over such forces, it may seek consultations within the CSCE to consider steps to be taken.

(…)

36. Each participating State will ensure that any decision to assign its armed forces to internal security missions is arrived at in conformity with constitutional procedures. Such decisions will prescribe the armed forces’ missions, ensuring that they will be per- formed under the effective control of constitutionally established authorities and sub- ject to the rule of law.

2.3.4 Independent National Human Rights Institutions Copenhagen 1990 (27) The participating States will (…) facilitate the establishment and strengthening of independent national institutions in the area of human rights and the rule of law, which may also serve as focal points for co-ordination and collaboration between such institu- tions in the participating States. They propose that co-operation be encouraged between parliamentarians from participating States, including through existing inter-parliamen- tary associations and, inter alia, through joint commissions, television debates involv- ing parliamentarians, meetings and round-table discussions. They will also encourage existing institutions, such as organizations within the United Nations system and the Council of Europe, to continue and expand the work they have begun in this area.

OSCE Human Dimension Commitments 85 Structural Components of a Democratic Society pa rt II

2.3.5 Non-governmental Organizations See also: á Part I. 2.3.3: Individuals, Human Rights Defenders, and Non-governmental Organizations

Moscow 1991 (43) The participating States will recognize as NGOs those which declare themselves as such, according to existing national procedures, and will facilitate the ability of such organizations to conduct their national activities freely on their territories; to that effect they will

(43.1) - endeavour to seek ways of further strengthening modalities for contacts and exchanges of views between NGOs and relevant national authorities and governmen- tal institutions;

(43.2) - endeavour to facilitate visits to their countries by NGOs from within any of the participating States in order to observe human dimension conditions;

(43.3) - welcome NGO activities, including, inter alia, observing compliance with CSCE commitments in the field of the human dimension;

(43.4) - allow NGOs, in view of their important function within the human dimen- sion of the CSCE, to convey their views to their own governments and the governments of all the other participating States during the future work of the CSCE on the human dimension.

Istanbul 1999 (Charter for European Security: III. Our Common Response) 27. Non-governmental organizations (NGOs) can perform a vital role in the promo- tion of human rights, democracy and the rule of law. They are an integral component of a strong civil society. We pledge ourselves to enhance the ability of NGOs to make their full contribution to the further development of civil society and respect for human rights and fundamental freedoms.

Maastricht 2003 (OSCE Strategy to Address Threats to Security and Stability in the Twenty-First Century) 36. (…) Based on its human dimension commitments, the OSCE strives to promote con- ditions throughout its region in which all can fully enjoy their human rights and fun- damental freedoms under the protection of effective democratic institutions, due judi- cial process and the rule of law. This includes secure environments and institutions for peaceful debate and expression of interests by all individuals and groups of society. Civil society has an important role to play in this regard, and the OSCE will continue to sup- port and help strengthen civil society organizations.

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2.3.6 Promoting Transparency, Combating Corruption, and Improving the Management of Public Resources Istanbul 1999 (Charter for European Security: III. Our Common Response) 33. We reaffirm our commitment to the rule of law. We recognize that corruption poses a great threat to the OSCE’s shared values. It generates instability and reaches into many aspects of the security, economic and human dimensions. Participating States pledge to strengthen their efforts to combat corruption and the conditions that foster it, and to promote a positive framework for good government practices and public integrity. They will make better use of existing international instruments and assist each other in their fight against corruption. As part of its work to promote the rule of law, the OSCE will work with NGOs that are committed to a strong public and business consensus against corrupt practices.

Maastricht 2003 (OSCE Strategy Document for the Economic and Environmental Dimension) Promoting transparency and combating corruption

2.2.4 Transparency in public affairs is an essential condition for the accountability of States and for the active participation of civil society in economic processes. Trans- parency increases the predictability of, and confidence in an economy that is function- ing on the basis of adequate legislation and with full respect for the rule of law. Free and pluralistic media which enjoy maximum editorial independence from political and financial pressure have an important role to play in ensuring such transparency.

2.2.5 We will make our governments more transparent by further developing processes and institutions for providing timely information, including reliable statistics, about issues of public interest in the economic and environmental fields to the media, the busi- ness community, civil society and citizens, with a view to promoting a well-informed and responsive dialogue. This is essential for decision-making which is responsive to changing conditions and to the needs and wishes of the population.

2.2.6. Transparency is also important for the exposure and prosecution of all forms of corruption, which undermines our economies and our societies. In addition to trans- parency, the fight against corruption requires the adoption by the participating States of a comprehensive and long-term anti-corruption strategy.

2.2.7 We agree to make the elimination of all forms of corruption a priority. We will consider accession to, encourage ratification of, and support full implementation of, international conventions and other instruments in the field of combating corruption, in particular those developed by the Council of Europe and the Organisation for Eco- nomic Co-operation and Development (OECD). We welcome the adoption of the UN Convention against corruption and look forward to its early signature, ratification and entry into force.

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Improving the management of public resources

2.2.8 Another component of good governance is the effective management of public resources by strong and well-functioning institutions, a professional and effective civil service and sound budgetary processes. Good management of public resources, includ- ing revenue collection, budget formation and execution and public procurement, is par- ticularly important in order to provide the best possible public and social services. We will seek to provide a solid financial basis for our public administration systems and to further strengthen their effectiveness and efficiency at all levels.

Sofia 2004 (Decisions: Decision No. 11/04 on Combating Corruption) The Ministerial Council,

(…)

Recognizing that the United Nations Convention against Corruption, adopted by the General Assembly of the United Nations on 31 October 2003 in New York, marks a major step forward in international co-operation against corruption and provides the opportunity for a global response to the problem,

Encourages the OSCE participating States, which have not yet done so, to sign and rat- ify the United Nations Convention against Corruption as soon as possible, in order to ensure its rapid entry into force, and implement it fully (…)

2.4 Rule of Law

See also: á Part I. 3: Restrictions and Derogations á Part II. 3.1.4: Freedom from Arbitrary Arrest or Detention á Part II. 3.1.5: Right to a Fair Trial á Part II. 3.1.6: Right to Effective Remedies

2.4.1 General Provisions Vienna 1989 (Questions Relating to Security in Europe: Principles) (13) (…) [the participating States] will

(…)

(13.4) - effectively ensure the right of the individual to know and act upon his rights and duties in this field, and to that end publish and make accessible all laws, regulations and procedures relating to human rights and fundamental freedoms;

Copenhagen 1990 (2) [The participating States] are determined to support and advance those principles of justice which form the basis of the rule of law. They consider that the rule of law

88 OSCE Human Dimension Commitments pa rt II Rule of Law

does not mean merely a formal legality which assures regularity and consistency in the achievement and enforcement of democratic order, but justice based on the recognition and full acceptance of the supreme value of the human personality and guaranteed by institutions providing a framework for its fullest expression.

(3) They reaffirm that democracy is an inherent element of the rule of law (…)

(…)

(5) They solemnly declare that among those elements of justice which are essential to the full expression of the inherent dignity and of the equal and inalienable rights of all human beings are the following:

(…)

(5.3) - the duty of the government and public authorities to comply with the constitu- tion and to act in a manner consistent with law;

(…)

(5.5) - the activity of the government and the administration as well as that of the judi- ciary will be exercised in accordance with the system established by law. Respect for that system must be ensured;

(…)

(5.7) - human rights and fundamental freedoms will be guaranteed by law and in accord- ance with their obligations under international law;

(5.8) - legislation, adopted at the end of a public procedure, and regulations will be pub- lished, that being the condition for their applicability. Those texts will be accessible to everyone;

(5.9) - all persons are equal before the law and are entitled without any discrimination to the equal protection of the law. In this respect, the law will prohibit any discrimina- tion and guarantee to all persons equal and effective protection against discrimination on any ground;

(…)

(5.15) - any person arrested or detained on a criminal charge will have the right, so that the lawfulness of his arrest or detention can be decided, to be brought promptly before a judge or other officer authorized by law to exercise this function;

(…)

(5.18) - no one will be charged with, tried for or convicted of any criminal offence unless the offence is provided for by a law which defines the elements of the offence with clar- ity and precision;

OSCE Human Dimension Commitments 89 Structural Components of a Democratic Society pa rt II

(5.19) - everyone will be presumed innocent until proved guilty according to law;

(5.20) - considering the important contribution of international instruments in the field of human rights to the rule of law at a national level, the participating States reaffirm that they will consider acceding to the International Covenant on Civil and Political Rights, the International Covenant on Economic, Social and Cultural Rights and other relevant international instruments, if they have not yet done so.

(5.21) - in order to supplement domestic remedies and better to ensure that the partici- pating States respect the international obligations they have undertaken, the participat- ing States will consider acceding to a regional or global international convention con- cerning the protection of human rights, such as the European Convention on Human Rights or the Optional Protocol to the International Covenant on Civil and Political Rights, which provide for procedures of individual recourse to international bodies.

(…)

(12) The participating States, wishing to ensure greater transparency in the implemen- tation of the commitments undertaken in the Vienna Concluding Document under the heading of the human dimension of the CSCE, decide to accept as a confidence build- ing measure the presence of observers sent by participating States and representatives of non-governmental organizations and other interested persons at proceedings before courts as provided for in national legislation and international law; it is understood that proceedings may only be held in camera in the circumstances prescribed by law and consistent with obligations under international law and international commitments.

(…)

(24) The participating States will ensure that the exercise of all the human rights and fundamental freedoms set out above will not be subject to any restrictions except those which are provided by law and are consistent with their obligations under international law, in particular the International Covenant on Civil and Political Rights, and with their international commitments, in particular the Universal Declaration of Human Rights. These restrictions have the character of exceptions. The participating States will ensure that these restrictions are not abused and are not applied in an arbitrary man- ner, but in such a way that the effective exercise of these rights is ensured. Any restric- tion on rights and freedoms must, in a democratic society, relate to one of the objectives of the applicable law and be strictly proportionate to the aim of that law.

Moscow 1991 (18.1) Legislation will be formulated and adopted as the result of an open process reflect- ing the will of the people, either directly or through their elected representatives.

(…)

(27) The participating States

90 OSCE Human Dimension Commitments pa rt II Rule of Law

(27.1) - express their intention to co-operate in the field of constitutional, administrative, commercial, civil and social welfare laws and their relevant areas, in order to develop, particularly in States where they do not yet exist, legal systems based on respect for human rights, the rule of law and democracy;

(27.2) - to this end, envisage the continuation and enhancement of bilateral and multi- lateral legal and administrative co-operation, inter alia, in the following fields:

• development of an efficient administrative system;

• assistance in formulating law and regulations;

• training of administrative and legal staff;

• exchange of legal works and periodicals.

Budapest 1994 (Decisions: VIII. The Human Dimension) 18. The participating States emphasize that all action by public authorities must be con- sistent with the rule of law, thus guaranteeing legal security for the individual.

2.4.2 Independence of the Judiciary and Legal Practitioners, and Impartial Operation of the Public Judicial Service Copenhagen 1990 (5) [The participating States] solemnly declare that among those elements of justice which are essential to the full expression of the inherent dignity and of the equal and inalienable rights of all human beings are the following:

(…)

(5.12) - the independence of judges and the impartial operation of the public judicial service will be ensured;

(5.13) - the independence of legal practitioners will be recognized and protected, in par- ticular as regards conditions for recruitment and practice;

Moscow 1991 (19) The participating States

(19.1) - will respect the internationally recognized standards that relate to the independ- ence of judges and legal practitioners and the impartial operation of the public judicial service including, inter alia, the Universal Declaration of Human Rights and the Inter- national Covenant on Civil and Political Rights;

(19.2) - will, in implementing the relevant standards and commitments, ensure that the independence of the judiciary is guaranteed and enshrined in the constitution or the

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law of the country and is respected in practice, paying particular attention to the Basic Principles on the Independence of the Judiciary, which, inter alia, provide for

(i) prohibiting improper influence on judges;

(ii) preventing revision of judicial decisions by administrative authorities, except for the rights of the competent authorities to mitigate or commute sentences imposed by judges, in conformity with the law;

(iii) protecting the judiciary’s freedom of expression and association, subject only to such restrictions as are consistent with its functions;

(iv) ensuring that judges are properly qualified, trained and selected on a non-discrimi- natory basis;

(v) guaranteeing tenure and appropriate conditions of service, including on the matter of promotion of judges, where applicable;

(vi) respecting conditions of immunity;

(vii) ensuring that the disciplining, suspension and removal of judges are determined according to law.

(20) For the promotion of the independence of the judiciary, the participating States will

(20.1) - recognize the important function national and international associations of judges and lawyers can perform in strengthening respect for the independence of their members and in providing education and training on the role of the judiciary and the legal profession in society;

(20.2) - promote and facilitate dialogue, exchanges and co-operation among national associations and other groups interested in ensuring respect for the independence of the judiciary and the protection of lawyers;

(20.3) - co-operate among themselves through, inter alia, dialogue, contacts and exchanges in order to identify where problem areas exist concerning the protection of the independence of judges and legal practitioners and to develop ways and means to address and resolve such problems;

(20.4) - co-operate on an ongoing basis in such areas as the education and training of judges and legal practitioners, as well as the preparation and enactment of legislation intended to strengthen respect for their independence and the impartial operation of the public judicial service.

92 OSCE Human Dimension Commitments pa rt II Rule of Law

Istanbul 1999 (Charter for European Security: IV. Our Common Instruments) 45. We shall also promote the development of independent judicial systems that play a key role in providing remedies for human rights violations as well as providing advice and assistance for prison system reforms (…)

2.4.3 Administration of Justice A. Law Enforcement Moscow 1991 (21) The participating States will

(21.1) - take all necessary measures to ensure that law enforcement personnel, when enforcing public order, will act in the public interest, respond to a specific need and pursue a legitimate aim, as well as use ways and means commensurate with the circum- stances, which will not exceed the needs of enforcement;

(21.2) - ensure that law enforcement acts are subject to judicial control, that law enforce- ment personnel are held accountable for such acts, and that due compensation may be sought, according to domestic law, by the victims of acts found to be in violation of the above commitments.

(22) The participating States will take appropriate measures to ensure that education and information regarding the prohibition of excess force by law enforcement person- nel as well as relevant international and domestic codes of conduct are included in the training of such personnel.

Budapest 1994 (Decisions: IV. Code of Conduct on Politico-Military Aspects of Security) 37. The participating States will not use armed forces to limit the peaceful and lawful exercise of their human and civil rights by persons as individuals or as representatives of groups nor to deprive them of their national, religious, cultural, linguistic or ethnic identity.

Istanbul 1999 (Charter for European Security: IV. Our Common Instruments) 45. (…) The OSCE will also work with other international organizations in the crea- tion of political and legal frameworks within which the police can perform its tasks in accordance with democratic principles and the rule of law.

Bucharest 2001 (Decisions: Decision No. 9 on Police-Related Activities) The Ministerial Council,

(…)

Affirming that effective policing is essential to uphold the rule of law and to defend democratic institutions;

OSCE Human Dimension Commitments 93 Structural Components of a Democratic Society pa rt II

(…)

1. Agrees that in developing plans for...and in enhancing OSCE police-related activities (…) the OSCE will:

(…)

• explore and build on the role of police training, particularly integrated police training, in creating police services that can enjoy the confidence of the entire population, and as a confidence-building measure (…)

B. Treatment of Persons Deprived of Their Liberty Vienna 1989 (Questions Relating to Security in Europe: Principles) (23) The participating States will

(23.1) - ensure that no one will be subjected to arbitrary arrest, detention or exile;

(23.2) - ensure that all individuals in detention or incarceration will be treated with humanity and with respect for the inherent dignity of the human person;

(23.3) - observe the United Nations Standard Minimum Rules for the Treatment of Pris- oners as well as the United Nations Code of Conduct for Law Enforcement Officials;

(23.4) - prohibit torture and other cruel, inhuman or degrading treatment or punish- ment and take effective legislative, administrative, judicial and other measures to pre- vent and punish such practices;

(23.5) - consider acceding to the Convention against Torture and other Cruel, inhuman or Degrading Treatment or Punishment, if they have not yet done so;

(23.6) - protect individuals from any psychiatric or other medical practices that violate human rights and fundamental freedoms and take effective measures to prevent and punish such practices.

(24) (…) In participating States where capital punishment has not been abolished, sen- tence of death may be imposed only for the most serious crimes in accordance with the law in force at the time of the commission of the crime and not contrary to their inter- national commitments (…)

Moscow 1991 (23) The participating States will treat all persons deprived of their liberty with human- ity and with respect for the inherent dignity of the human person and will respect the internationally recognized standards that relate to the administration of justice and the human rights of detainees.

(23.1) The participating States will ensure that

94 OSCE Human Dimension Commitments pa rt II Rule of Law

(i) no one will be deprived of his liberty except on such grounds and in accordance with such procedures as are established by law;

(ii) anyone who is arrested will be informed proptly in a language which he under- stands of the reason for his arrest, and will be informed of any charges against him;

(iii) any person who has been deprived of his liberty will be promptly informed about his rights according to domestic law;

(iv) any person arrested or detained will have the right to be brought promptly before a judge or other officer authorized by law to determine the lawfulness of his arrest or detention, and will be released without delay if it is unlawful;

(v) anyone charged with a criminal offence will have the right to defend himself in person or through legal assistance of his own choosing or, if he has not sufficient means to pay for legal assistance, to be given it free when the interests of justice so require;

(vi) any person arrested or detained will have the right, without undue delay, to notify or to require the competent authority to notify appropriate persons of his choice of his arrest, detention, imprisonment and whereabouts; any restriction in the exer- cise of this right will be prescribed by law and in accordance with international standards;

(vii) effective measures will be adopted, if this has not already been done, to provide that law enforcement bodies do not take undue advantage of the situation of a detained or imprisoned person for the purpose of compelling him to confess, or otherwise to incriminate himself, or to force him to testify against any other person;

(viii) the duration of any interrogation and the intervals between them will be recorded and certified, consistent with domestic law;

(ix) a detailed person or his counsel will have the right to make a request or complaint regarding his treatment, in particular when torture or other cruel, inhuman or degrading treatment has been applied, to the authorities responsible for the admin- istration of the place of detention and to higher authorities, and when necessary, to appropriate authorities vested with reviewing or remedial power;

(x) such request or complaint will be promptly dealt with and replied to without undue delay; if the request or complaint is rejected or in case of inordinate delay, the com- plainant will be entitled to bring it before a judicial or other authority; neither the detained or imprisoned person nor any complainant will suffer prejudice for mak- ing a request or complaint;

(xi) anyone who has been the victim of an unlawful arrest or detention will have a legally enforceable right to seek compensation.

OSCE Human Dimension Commitments 95 Structural Components of a Democratic Society pa rt II

(23.2) The participating States will

(i) endeavour to take measures, as necessary, to improve the conditions of individuals in detention or imprisonment;

(ii) pay particular attention to the question of alternatives to imprisonment.

2.4.4 Fulfilment of International Obligations Helsinki 1975 (Questions Relating to Security in Europe: 1.(a) Declaration on Principles Guiding Relations between Participating States – Principle X) The participating States will fulfil in good faith their obligations under international law, both those obligations arising from the generally recognized principles and rules of international law and those obligations arising from treaties or other agreements, in conformity with international law, to which they are parties.

In exercising their sovereign rights, including the right to determine their laws and reg- ulations, they will conform with their legal obligations under international law; they will furthermore pay due regard to and implement the provisions in the Final Act of the Conference on Security and Cooperation in Europe.

The participating States confirm that in the event of a conflict between the obligations of the members of the United Nations under the Charter of the United Nations and their obligations under any treaty or other international agreement, their obligations under the Charter will prevail, in accordance with Article 103 of the Charter of the United Nations.

96 OSCE Human Dimension Commitments 3. Commitments Related to Human Rights That Are Applicable to All

3.1 Civil and Political Rights

3.1.1 General Provisions Helsinki 1975 (Questions Relating to Security in Europe: 1.(a) Declaration on Principles Guiding Relations between Participating States – Principle VII) [The participating States] will promote and encourage the effective exercise of civil, political (…) and other rights and freedoms all of which derive from the inherent dig- nity of the human person and are essential for his free and full development.

Madrid 1983 (Questions Relating to Security in Europe: Principles) [The participating States] similarly stress their determination to develop their laws and regulations in the field of civil, political (…) and other human rights and fundamental freedoms; they also emphasize their determination to ensure the effective exercise of these rights and freedoms.

Vienna 1989 (Questions Relating to Security in Europe: Principles) (12) (…) [The participating States] recognize that civil, political (…) and other rights and freedoms are all of paramount importance and must be fully realized by all appropri- ate means.

(13) In this context they will

(…)

(13.2) - consider acceding to the International Covenant on Civil and Political Rights (…), the Optional Protocol to the Covenant on Civil and Political Rights and other rele- vant international instruments, if they have not yet done so;

(…)

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3.1.2 Right to Life/Abolition of the Death Penalty Vienna 1989 (Questions Relating to Security in Europe: Principles) (24) With regard to the question of capital punishment, the participating States note that capital punishment has been abolished in a number of them. In participating States where capital punishment has not been abolished, sentence of death may be imposed only for the most serious crimes in accordance with the law in force at the time of the commission of the crime and not contrary to their international commitments. This question will be kept under consideration. In this context, the participating States will co-operate within relevant international organizations.

Copenhagen 1990 (17) The participating States

(…)

(17.2) - recall, in this context, the adoption by the General Assembly of the United Nations, on 15 December 1989, of the Second Optional Protocol to the International Covenant on Civil and Political Rights, aiming at the abolition of the death penalty;

(17.3) - note the restrictions and safeguards regarding the use of the death penalty which have been adopted by the international community, in particular article 6 of the Inter- national Covenant on Civil and Political Rights;

(17.4) - note the provisions of the Sixth Protocol to the European Convention for the Protection of Human Rights and Fundamental Freedoms, concerning the abolition of the death penalty;

(17.5) - note recent measures taken by a number of participating States towards the abo- lition of capital punishment;

(17.6) - note the activities of several non-governmental organizations on the question of the death penalty;

(17.7) - will exchange information within the framework of the Conference on the Human Dimension on the question of the abolition of the death penalty and keep that question under consideration;

(17.8) - will make available to the public information regarding the use of the death pen- alty.

3.1.3 Prohibition of Torture and Other Cruel, Inhuman, or Degrading Treatment or Punishment Vienna 1989 (Questions Relating to Security in Europe: Principles) (23) The participating States will

(…)

98 OSCE Human Dimension Commitments pa rt II Civil and Political Rights

(23.2) - ensure that all individuals in detention or incarceration will be treated with humanity and with respect for the inherent dignity of the human person;

(23.3) - observe the United Nations Standard Minimum Rules for the Treatment of Pris- oners as well as the United Nations Code of Conduct for Law Enforcement Officials;

(23.4) - prohibit torture and other cruel, inhuman or degrading treatment or punish- ment and take effective legislative, administrative, judicial and other measures to pre- vent and punish such practices;

(23.5) - consider acceding to the Convention against Torture and other Cruel, Inhuman or Degrading Treatment or Punishment, if they have not yet done so;

(23.6) - protect individuals from any psychiatric or other medical practices that violate human rights and fundamental freedoms and take effective measures to prevent and punish such practices.

Copenhagen 1990 (16) The participating States

(…)

(16.2) - intend, as a matter of urgency, to consider acceding to the Convention against Torture and Other Cruel, Inhuman or Degrading Treatment or Punishment, if they have not yet done so, and recognizing the competences of the Committee against Tor- ture under articles 21 and 22 of the Convention and withdrawing reservations regard- ing the competence of the Committee under article 20;

(16.3) - stress that no exceptional circumstances whatsoever, whether a state of war or a threat of war, internal political instability or any other public emergency, may be invoked as a justification of torture;

(16.4) - will ensure that education and information regarding the prohibition against torture are fully included in the training of law enforcement personnel, civil or military, medical personnel, public officials and other persons who may be involved in the cus- tody, interrogation or treatment of any individual subjected to any form of arrest, deten- tion or imprisonment;

(16.5) - will keep under systematic review interrogation rules, instructions, methods and practices as well as arrangements for the custody and treatment of persons sub- jected to any form of arrest, detention or imprisonment in any territory under their jurisdiction, with a view to preventing any cases of torture;

(16.6) - will take up with priority for consideration and for appropriate action, in accord- ance with the agreed measures and procedures for the effective implementation of the commitments relating to the human dimension of the CSCE, any cases of torture and

OSCE Human Dimension Commitments 99 Human Rights That Are Applicable to All pa rt II

other inhuman or degrading treatment or punishment made known to them through official channels or coming from any other reliable source of information;

(16.7) - will act upon the understanding that preserving and guaranteeing the life and security of any individual subjected to any form of torture and other inhuman or degrad- ing treatment or punishment will be the sole criterion in determining the urgency and priorities to be accorded in taking appropriate remedial action; and, therefore, the con- sideration of any cases of torture and other inhuman or degrading treatment or punish- ment within the framework of any other international body or mechanism may not be invoked as a reason for refraining from consideration and appropriate action in accord- ance with the agreed measures and procedures for the effective implementation of the commitments relating to the human dimension of the CSCE.

Paris 1990 (A New Era of Democracy, Peace and Unity) We affirm that, without discrimination (…) no one will be:

(…)

subject to torture or other cruel, inhuman or degrading treatment or punishment;

(…)

Moscow 1991 (23.1) The participating States will ensure that

(…)

(vii) effective measures will be adopted, if this has not already been done, to provide that law enforcement bodies do not take undue advantage of the situation of a detained or imprisoned person for the purpose of compelling him to confess, or otherwise to incriminate himself, or to force him to testify against any other person;

(viii) the duration of any interrogation and the intervals between them will be recorded and certified, consistent with domestic law;

(ix) a detailed person or his counsel will have the right to make a request or complaint regarding his treatment, in particular when torture or other cruel, inhuman or degrad- ing treatment has been applied, to the authorities responsible for the administration of the place of detention and to higher authorities, and when necessary, to appropriate authorities vested with reviewing or remedial power;

(x) such request or complaint will be promptly dealt with and replied to without undue delay; if the request or complaint is rejected or in case of inordinate delay, the complain- ant will be entitled to bring it before a judicial or other authority; neither the detained or imprisoned person nor any complainant will suffer prejudice for making a request or complaint;

100 OSCE Human Dimension Commitments pa rt II Civil and Political Rights

Budapest 1994 (Decisions: VIII. The Human Dimension) 20. The participating States strongly condemn all forms of torture as one of the most flagrant violations of human rights and human dignity. They commit themselves to strive for its elimination.

They recognize the importance in this respect of international norms as laid down in international treaties on human rights, in particular the United Nations Convention against Torture and other Cruel, Inhuman or Degrading Treatment or Punishment and the European Convention for the Prevention of Torture and Inhuman or Degrading Treatment or Punishment. They also recognize the importance of national legislation aimed at eradicating torture. They commit themselves to inquire into all alleged cases of torture and to prosecute offenders. They also commit themselves to include in their educational and training programmes for law enforcement and police forces specific provisions with a view to eradicating torture. They consider that an exchange of infor- mation on this problem is an essential prerequisite. The participating States should have the possibility to obtain such information. The CSCE should in this context also draw on the experience of the Special Rapporteur on Torture and other Cruelly Inhuman or Degrading Treatment or Punishment established by the Commission on Human Rights of the United Nations and make use of information provided by NGOs.

Istanbul 1999 (Charter for European Security: III. Our Common Response) 21. We are committed to eradicating torture and cruel, inhumane or degrading treat- ment or punishment throughout the OSCE area. To this end, we will promote legisla- tion to provide procedural and substantive safeguards and remedies to combat these practices. We will assist victims and co-operate with relevant international organiza- tions and non-governmental organizations, as appropriate.

3.1.4 Freedom from Arbitrary Arrest or Detention See also: á Part II. 2.4.1: Rule of Law > General Provisions á Part II. 2.4.3 B: Treatment of Persons Deprived of Their Liberty á Part II. 3.1.3: Prohibition of Torture and Other Cruel, Inhuman, or Degrading Treatment or Punishment á Part II. 3.1.5: Right to a Fair Trial á Part II. 3.1.6: Right to Effective Remedies

Vienna 1989 (Questions Relating to Security in Europe: Principles) (23) The participating States will

(23.1) - ensure that no one will be subjected to arbitrary arrest, detention or exile;

(…)

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Copenhagen 1990

(5.15) - any person arrested or detained on a criminal charge will have the right, so that the lawfulness of his arrest or detention can be decided, to be brought promptly before a judge or other officer authorized by law to exercise this function;

(…)

Moscow 1991 (23.1) The participating States will ensure that

(i) no one will be deprived of his liberty except on such grounds and in accordance with such procedures as are established by law;

(ii) anyone who is arrested will be informed promptly in a language which he under- stands of the reason for his arrest, and will be informed of any charges against him;

(iii) any person who has been deprived of his liberty will be promptly informed about his rights according to domestic law;

(iv) any person arrested or detained will have the right to be brought promptly before a judge or other officer authorized by law to determine the lawfulness of his arrest or detention, and will be released without delay if it is unlawful;

(…)

(vi) any person arrested or detained will have the right, without undue delay, to notify or to require the competent authority to notify appropriate persons of his choice of his arrest, detention, imprisonment and whereabouts; any restriction in the exercise of this right will be prescribed by law and in accordance with international standards;

(vii) effective measures will be adopted, if this has not already been done, to provide that law enforcement bodies do not take undue advantage of the situation of a detained or imprisoned person for the purpose of compelling him to confess, or otherwise to incriminate himself, or to force him to testify against any other person;

(viii) the duration of any interrogation and the intervals between them will be recorded and certified, consistent with domestic law;

(ix) a detailed person or his counsel will have the right to make a request or complaint regarding his treatment, in particular when torture or other cruel, inhuman or degrad- ing treatment has been applied, to the authorities responsible for the administration of the place of detention and to higher authorities, and when necessary, to appropriate authorities vested with reviewing or remedial power;

(x) such request or complaint will be promptly dealt with and replied to without undue delay; if the request or complaint is rejected or in case of inordinate delay, the complain- ant will be entitled to bring it before a judicial or other authority; neither the detained

102 OSCE Human Dimension Commitments pa rt II Civil and Political Rights

or imprisoned person nor any complainant will suffer prejudice for making a request or complaint;

(xi) anyone who has been the victim of an unlawful arrest or detention will have a legally enforceable right to seek compensation.

3.1.5 Right to a Fair Trial See also: á Part II. 2.4: Rule of Law á Part II. 3.1.4: Freedom from Arbitrary Arrest or Detention á Part II. 3.1.6: Right to Effective Remedies

Vienna 1989 (Questions Relating to Security in Europe: Principles) [The participating States] (…) will

(…)

(13.9) - ensure that effective remedies as well as full information about them are avail- able to those who claim that their human rights and fundamental freedoms have been violated; they will, inter alia, effectively apply the following remedies:

• the right of the individual to appeal to executive, legislative, judicial or administrative organs;

• the right to a fair and public hearing within a reasonable time before an independent and impartial tribunal, including the right to present legal arguments and to be repre- sented by legal counsel of one's choice;

• the right to be promptly and officially informed of the decision taken on any appeal, including the legal grounds on which this decision was based. This information will be provided as a rule in writing and, in any event, in a way that will enable the individual to make effective use of further available remedies.

Copenhagen 1990 (5) [The participating States] solemnly declare that among those elements of justice which are essential to the full expression of the inherent dignity and of the equal and inalienable rights of all human beings are the following:

(…)

(5.12) - the independence of judges and the impartial operation of the public judicial service will be ensured;

(5.13) - the independence of legal practitioners will be recognized and protected, in par- ticular as regards conditions for recruitment and practice;

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(5.14) - the rules relating to criminal procedure will contain a clear definition of powers in relation to prosecution and the measures preceding and accompanying prosecution;

(5.15) - any person arrested or detained on a criminal charge will have the right, so that the lawfulness of his arrest or detention can be decided, to be brought promptly before a judge or other officer authorized by law to exercise this function;

(5.16) - in the determination of any criminal charge against him, or of his rights and obligations in a suit at law, everyone will be entitled to a fair and public hearing by a competent, independent and impartial tribunal established by law;

(5.17) - any person prosecuted will have the right to defend himself in person or through prompt legal assistance of his own choosing or, if he does not have sufficient means to pay for legal assistance, to be given it free when the interests of justice so require;

(5.18) - no one will be charged with, tried for or convicted of any criminal offence unless the offence is provided for by a law which defines the elements of the offence with clar- ity and precision;

(5.19) - everyone will be presumed innocent until proved guilty according to law;

(…)

(12) The participating States, wishing to ensure greater transparency in the implemen- tation of the commitments undertaken in the Vienna Concluding Document under the heading of the human dimension of the CSCE, decide to accept as a confidence build- ing measure the presence of observers sent by participating States and representatives of non-governmental organizations and other interested persons at proceedings before courts as provided for in national legislation and international law; it is understood that proceedings may only be held in camera in the circumstances prescribed by law and consistent with obligations under international law and international commitments.

3.1.6 Right to Effective Remedies See also: á Part II. 2.4: Rule of Law á Part II. 3.1.4: Freedom from Arbitrary Arrest or Detention á Part II. 3.1.5: Right to a Fair Trial

Vienna 1989 (Questions Relating to Security in Europe: Principles) (13) (…) [the participating States] will

(…)

(13.9) - ensure that effective remedies as well as full information about them are avail- able to those who claim that their human rights and fundamental freedoms have been violated; they will, inter alia, effectively apply the following remedies:

104 OSCE Human Dimension Commitments pa rt II Civil and Political Rights

• the right of the individual to appeal to executive, legislative, judicial or administrative organs;

• the right to a fair and public hearing within a reasonable time before an independent and impartial tribunal, including the right to present legal arguments and to be repre- sented by legal counsel of one's choice;

• the right to be promptly and officially informed of the decision taken on any appeal, including the legal grounds on which this decision was based. This information will be provided as a rule in writing and, in any event, in a way that will enable the individual to make effective use of further available remedies.

Copenhagen 1990 (5) [The participating States] solemnly declare that among those elements of justice which are essential to the full expression of the inherent dignity and of the equal and inalienable rights of all human beings are the following:

(5.10) - everyone will have an effective means of redress against administrative deci- sions, so as to guarantee respect for fundamental rights and ensure legal integrity;

(5.11) - administrative decisions against a person must be fully justifiable and must as a rule indicate the usual remedies available;

(...)

(5.21) - in order to supplement domestic remedies and better to ensure that the partici- pating States respect the international obligations they have undertaken, the participat- ing States will consider acceding to a regional or global international convention con- cerning the protection of human rights, such as the European Convention on Human Rights or the Optional Protocol to the International Covenant on Civil and Political Rights, which provide for procedures of individual recourse to international bodies.

(…)

(11) The participating States further affirm that, where violations of human rights and fundamental freedoms are alleged to have occurred, the effective remedies available include

(11.1) - the right of the individual to seek and receive adequate legal assistance;

(11.2) - the right of the individual to seek and receive assistance from others in defend- ing human rights and fundamental freedoms, and to assist others in defending human rights and fundamental freedoms;

(11.3) - the right of individuals or groups acting on their behalf to communicate with international bodies with competence to receive and consider information concerning allegations of human rights abuses.

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(…)

(40) The participating States (…) will

(…)

(40.5) -recognize the right of the individual to effective remedies and endeavour to recognize, in conformity with national legislation, the right of interested persons and groups to initiate and support complaints against acts of discrimination, including rac- ist and xenophobic acts;

Paris 1990 (A New Era of Democracy, Peace and Unity) We will ensure that everyone will enjoy recourse to effective remedies, national or inter- national, against any violation of his rights.

Moscow 1991 (18.2) Everyone will have an effective means of redress against administrative decisions, so as to guarantee respect for fundamental rights and ensure legal integrity.

(18.3) To the same end, there will be effective means of redress against administrative regulations for individuals affected thereby.

(18.4) The participating States will endeavour to provide for judicial review of such reg- ulations and decisions.

3.1.7 Conscientious Objection and Alternative Service Copenhagen 1990 (18) The participating States

(18.1) - note that the United Nations Commission on Human Rights has recognized the right of everyone to have conscientious objections to military service;

(18.2) - note recent measures taken by a number of participating States to permit exemp- tion from compulsory military service on the basis of conscientious objections;

(18.3) - note the activities of several non-governmental organizations on the question of conscientious objections to compulsory military service;

(18.4) - agree to consider introducing, where this has not yet been done, various forms of alternative service, which are compatible with the reasons for conscientious objec- tion, such forms of alternative service being in principle of a non-combatant or civilian nature, in the public interest and of a non-punitive nature;

(18.5) - will make available to the public information on this issue;

(18.6) - will keep under consideration, within the framework of the Conference on the Human Dimension, the relevant questions related to the exemption from compulsory

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military service, where it exists, of individuals on the basis of conscientious objections to armed service, and will exchange information on these questions.

Budapest 1994 (Decisions: IV. Code of Conduct on Politico-Military Aspects of Secu- rity) 28. The participating States will reflect in their laws or other relevant documents the rights and duties of armed forces personnel. They will consider introducing exemptions from or alternatives to military service.

3.1.8 Freedom of Thought, Conscience, Religion, or Belief Helsinki 1975 (Questions Relating to Security in Europe: 1.(a) Declaration on Principles Guiding Relations between Participating States – Principle VII) The participating States will respect human rights and fundamental freedoms, includ- ing the freedom of thought, conscience, religion or belief, for all without distinction as to race, sex, language or religion.

(…)

Within this framework the participating States will recognize and respect the freedom of the individual to profess and practice, alone or in community with others, religion or belief acting in accordance with the dictates of his own conscience.

Helsinki 1975 (Co-operation in Humanitarian and Other Fields) [The participating States] confirm that religious faiths, institutions and organizations, practising within the constitutional framework of the participating States, and their representatives can, in the field of their activities, have contacts and meetings among themselves and exchange information.

Madrid 1983 (Questions Relating to Security in Europe: Principles) The participating States (…) furthermore agree to take the action necessary to ensure the freedom of the individual to profess and practise, alone or in community with oth- ers, religion or belief acting in accordance with the dictates of his own conscience.

In this context, they will consult, whenever necessary, the religious faiths, institutions and organizations, which act within the constitutional framework of their respective countries.

They will favourably consider applications by religious communities of believers prac- tising or prepared to practise their faith within the constitutional framework of their States, to be granted the status provided for in their respective countries for religious faiths, institutions and organizations.

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Vienna 1989 (Questions Relating to Security in Europe: Principles) (16) In order to ensure the freedom of the individual to profess and practise religion or belief, the participating States will, inter alia,

(16.1) - take effective measures to prevent and eliminate discrimination against indi- viduals or communities on the grounds of religion or belief in the recognition, exercise and enjoyment of human rights and fundamental freedoms in all fields of civil, political, economic, social and cultural life, and to ensure the effective equality between believ- ers and non-believers;

(16.2) - foster a climate of mutual tolerance and respect between believers of different communities as well as between believers and non-believers;

(16.3) - grant upon their request to communities of believers, practising or prepared to practise their faith within the constitutional framework of their States, recognition of the status provided for them in their respective countries;

(16.4) - respect the right of these religious communities to

• establish and maintain freely accessible places of worship or assembly,

• organize themselves according to their own hierarchical and institutional structure,

• select, appoint and replace their personnel in accordance with their respective require- ments and standards as well as with any freely accepted arrangement between them and their State,

• solicit and receive voluntary financial and other contributions;

(16.5) - engage in consultations with religious faiths, institutions and organizations in order to achieve a better understanding of the requirements of religious freedom;

(16.6) - respect the right of everyone to give and receive religious education in the lan- guage of his choice, whether individually or in association with others;

(16.7) - in this context respect, inter alia, the liberty of parents to ensure the religious and moral education of their children in conformity with their own convictions;

(16.8) - allow the training of religious personnel in appropriate institutions;

(16.9) - respect the right of individual believers and communities of believers to acquire, possess, and use sacred books, religious publications in the language of their choice and other articles and materials related to the practice of religion or belief,

(16.10) - allow religious faiths, institutions and organizations to produce, import and disseminate religious publications and materials;

(16.11) - favourably consider the interest of religious communities to participate in pub- lic dialogue, including through the mass media.

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(17) The participating States recognize that the exercise of the above-mentioned rights relating to the freedom of religion or belief may be subject only to such limitations as are provided by law and consistent with their obligations under international law and with their international commitments. They will ensure in their laws and regulations and in their application the full and effective exercise of the freedom of thought, con- science, religion or belief.

(…)

(32) They will allow believers, religious faiths and their representatives, in groups or on an individual basis, to establish and maintain direct personal contacts and commu- nication with each other, in their own and other countries, inter alia through travel, pilgrimages and participation in assemblies and other religious events. In this context and commensurate with such contacts and events, those concerned will be allowed to acquire, receive and carry with them religious publications and objects related to the practice of their religion or belief.

Copenhagen 1990 The participating States reaffirm that

(9.4) - everyone will have the right to freedom of thought, conscience and religion. This right includes freedom to change one’s religion or belief and freedom to manifest one’s religion or belief, either alone or in community with others, in public or in private, through worship, teaching, practice and observance. The exercise of these rights may be subject only to such restrictions as are prescribed by law and are consistent with inter- national standards;

(…)

(32) (…) Persons belonging to national minorities have the right freely to express, pre- serve and develop their ethnic, cultural, linguistic or religious identity and to maintain and develop their culture in all its aspects, free of any attempts at assimilation against their will. In particular, they have the right

(…)

(32.3) - to profess and practise their religion, including the acquisition, possession and use of religious materials, and to conduct religious educational activities in their mother tongue;

(…)

Budapest 1994 (Decisions: VIII. The Human Dimension) 27. Reaffirming their commitment to ensure freedom of conscience and religion and to foster a climate of mutual tolerance and respect between believers of different com- munities as well as between believers and non-believers, they expressed their concern about the exploitation of religion for aggressive nationalist ends.

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Maastricht 2003 (Decisions: Decision No. 4/03 on Tolerance and Non-discrimination) 9. Affirms the importance of freedom of thought, conscience, religion or belief, and con- demns all discrimination and violence, including against any religious group or individ- ual believer. Commits to ensure and facilitate the freedom of the individual to profess and practice a religion or belief, alone or in community with others, where necessary through transparent and non-discriminatory laws, regulations, practices and policies. Encourages the participating States to seek the assistance of the ODIHR and its Panel of Experts on Freedom of Religion or Belief. Emphasizes the importance of a contin- ued and strengthened interfaith and intercultural dialogue to promote greater toler- ance, respect and mutual understanding;

3.1.9 Freedom of Association and the Right of Peaceful Assembly Madrid 1983 (Questions Relating to Security in Europe: Principles) The participating States will ensure the right of workers freely to establish and join trade unions, the right of trade unions freely to exercise their activities and other rights as laid down in relevant international instruments. They note that these rights will be exercised in compliance with the law of the State and in conformity with the State’s obligations under international law. They will encourage, as appropriate, direct contacts and communication among such trade unions and their representatives.

Sofia 1989 (Preamble) The participating States reaffirm their respect for the right of individuals, groups and organizations concerned with environmental issues to express freely their views, to associate with others, to peacefully assemble, as well as to obtain, publish and distrib- ute information on these issues, without legal and administrative impediments incon- sistent with the CSCE provisions. These individuals, groups and organizations have the right to participate in public debates on environmental issues, as well as to establish and maintain direct and independent contacts at national and international level.

Bonn 1990 (Preamble) Recognizing the relationship between political pluralism and market economies, and being committed to the principles concerning:

(…)

• Economic activity that accordingly upholds human dignity and is free from (…) denial of the rights of workers freely to establish or join independent trade unions,

Will endeavour to achieve or maintain the following (…)

Copenhagen 1990 (7) (…) the participating States will

110 OSCE Human Dimension Commitments pa rt II Civil and Political Rights

(7.6) - respect the right of individuals and groups to establish, in full freedom, their own political parties or other political organizations (…)

(…)

(9) The participating States reaffirm that

(9.2) - everyone will have the right of peaceful assembly and demonstration. Any restric- tions which may be placed on the exercise of these rights will be prescribed by law and consistent with international standards;

(9.3) - the right of association will be guaranteed. The right to form and - subject to the general right of a trade union to determine its own membership - freely to join a trade union will be guaranteed. These rights will exclude any prior control. Freedom of asso- ciation for workers, including the freedom to strike, will be guaranteed, subject to limi- tations prescribed by law and consistent with international standards;

(…)

(10) (…) the participating States express their commitment to

(10.3) - ensure that individuals are permitted to exercise the right to association, includ- ing the right to form, join and participate effectively in non-governmental organizations which seek the promotion and protection of human rights and fundamental freedoms, including trade unions and human rights monitoring groups;

(…)

(32) (…) Persons belonging to national minorities have the right freely to express, pre- serve and develop their ethnic, cultural, linguistic or religious identity and to maintain and develop their culture in all its aspects, free of any attempts at assimilation against their will. In particular, they have the right

(…)

(32.6) - to establish and maintain organizations or associations within their country and to participate in international non-governmental organizations.

Paris 1990 (A New Era of Democracy, Peace and Unity) We affirm that, without discrimination, every individual has the right to (…) freedom of association and peaceful assembly (…)

3.1.10 Freedom of Expression, Free Media and Information A. General Provisions Helsinki 1975 (Co-operation in Humanitarian and Other Fields) The participating States,

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Conscious of the need for an ever wider knowledge and understanding of the various aspects of life in other participating States,

Acknowledging the contribution of this process to the growth of confidence between peoples,

Desiring, with the development of mutual understanding between the participating States and with the further improvement of their relations, to continue further efforts towards progress in this field,

Recognizing the importance of the dissemination of information from the other partic- ipating States and of a better acquaintance with such information,

(…)

Make it their aim to facilitate the freer and wider dissemination of information of all kinds, to encourage co-operation in the field of information and the exchange of infor- mation with other countries (…)

Vienna 1989 (Co-operation in Humanitarian and Other Fields) (34) (…) in accordance with the International Covenant on Civil and Political Rights, the Universal Declaration of Human Rights and their relevant international commit- ments concerning seeking, receiving and imparting information of all kinds, [the par- ticipating States] will ensure that individuals can freely choose their sources of infor- mation. In this context they will (…)

• allow individuals, institutions and organizations, while respecting intellectual prop- erty rights, including copyright, to obtain, possess, reproduce and distribute informa- tion material of all kinds.

To these ends they will remove any restrictions inconsistent with the abovementioned obligations and commitments.

(35) They will take every opportunity offered by modern means of communication, including cable and satellites. to increase the freer and wider dissemination of informa- tion of all kinds. They will also encourage co-operation and exchanges between their relevant institutions, organizations and technical experts, and work towards the har- monization of technical standards and norms.

(36) They will ensure in practice that official information bulletins can be freely distrib- uted on their territory by the diplomatic and other official missions and consular posts of the other participating States.

(…)

(45) They will ensure in practice that persons belonging to national minorities or regional cultures on their territories can disseminate, have access to, and exchange information in their mother tongue.

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Sofia 1989 (Preamble) The participating States reaffirm their respect for the right of individuals, groups and organizations concerned with environmental issues to express freely their views, to associate with others, to peacefully assemble, as well as to obtain, publish and distrib- ute information on these issues, without legal and administrative impediments incon- sistent with the CSCE provisions. These individuals, groups and organizations have the right to participate in public debates on environmental issues, as well as to establish and maintain direct and independent contacts at national and international level.

Copenhagen 1990 (7) (…) the participating States will

(…)

(7.7) - ensure that law and public policy work to permit political campaigning to be con- ducted in a fair and free atmosphere in which neither administrative action, violence nor intimidation bars the parties and the candidates from freely presenting their views and qualifications, or prevents the voters from learning and discussing them (…)

(…)

(9) The participating States reaffirm that

(9.1) - everyone will have the right to freedom of expression including the right to com- munication. This right will include freedom to hold opinions and to receive and impart information and ideas without interference by public authority and regardless of fron- tiers. The exercise of this right may be subject only to such restrictions as are prescribed by law and are consistent with international standards. In particular, no limitation will be imposed on access to, and use of, means of reproducing documents of any kind, while respecting, however, rights relating to intellectual property, including copyright;

(…)

(10) (…) the participating States express their commitment to

(10.1) - respect the right of everyone, individually or in association with others, to seek, receive and impart freely views and information on human rights and fundamental freedoms, including the rights to disseminate and publish such views and information;

(10.2) - respect the rights of everyone, individually or in association with others, to study and discuss the observance of human rights and fundamental freedoms and to develop and discuss ideas for improved protection of human rights and better means for ensur- ing compliance with international human rights standards;

(…)

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(32) (…) Persons belonging to national minorities have the right freely to express, pre- serve and develop their ethnic, cultural, linguistic or religious identity and to maintain and develop their culture in all its aspects, free of any attempts at assimilation against their will.

Budapest 1994 (Decisions: VIII. The Human Dimension) 36. The participating States reaffirm that freedom of expression is a fundamental human right and a basic component of a democratic society.

Istanbul 1999 (Charter for European Security: III. Our Common Response) 26. We reaffirm the importance of (…) the free flow of information as well as the pub- lic’s access to information. We commit ourselves to take all necessary steps to ensure the basic conditions for (…) unimpeded transborder and intra-State flow of informa- tion (…)

B. Media Freedom and Working Conditions for Journalists See also: á Part I. 2.3.4 C: The Representative on Freedom of the Media

Helsinki 1975 (Co-operation in Humanitarian and Other Fields) (…) Recognizing the importance of the dissemination of information from the other participating States and of a better acquaintance with such information,

Emphasizing therefore the essential and influential role of the press, radio, television, cinema and news agencies and of the journalists working in these fields,

Make it their aim to facilitate the freer and wider dissemination of information of all kinds, to encourage co-operation in the field of information and the exchange of infor- mation with other countries, and. to improve the conditions under which journalists from one participating State exercise their profession in another participating State, and

Express their intention in particular:

(a) Improvement of the Circulation of, Access to, and Exchange of Information

(…)

(ii) Printed Information

- To facilitate the improvement of the dissemination, on their territory, of newspapers and printed publications, periodical and non-periodical, from the other participating States.

(…)

114 OSCE Human Dimension Commitments pa rt II Civil and Political Rights

- To contribute to the improvement of access by the public to [imported] periodical and nonperiodical printed publications (…)

(iii) Filmed and Broadcast Information

- To promote the improvement of the dissemination of filmed and broadcast informa- tion (…)

The participating States note the expansion in the dissemination of information broad- cast by radio, and express the hope for the continuation of this process, so as to meet the interest of mutual understanding among peoples and the aims set forth by this Con- ference.

(b) Co-operation in the Field of Information

- To encourage co-operation in the field of information on the basis of short or long term agreements or arrangements. In particular:

• they will favour increased co-operation among mass media organizations. Including press agencies, as well as among publishing houses and organizations;

• they will favour co-operation among public or private, national or international radio and television organizations, in particular through the exchange of both live and recorded radio and television programmes, and through the joint production and the broadcasting and distribution of such programmes;

• they will encourage meetings and contacts both between journalists organizations and between journalists from the participating States;

• they will view favourably the possibilities of arrangements between periodical publi- cations as well as between newspapers from the participating States, for the purpose of exchanging and publishing articles;

• they will encourage the exchange of technical information as well as the organiza- tion of joint research and meetings devoted to the exchange of experience and views between experts in the field of the press, radio and television.

(c) Improvement of Working Conditions for Journalists

The participating States, desiring to improve the conditions under which journalists from one participating State exercise their profession in another participating State, intend in particular to:

• examine in a favourable spirit and within a suitable and reasonable time scale requests from journalists for visas;

• grant to permanently accredited journalists of the participating States, on the basis of arrangements, multiple entry and exit visas for specified periods;

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• facilitate the issue to accredited journalists of the participating States of permits for stay in their country of temporary residence and, if and when these are necessary, of other official papers which it is appropriate for them to have;

• ease, on a basis of reciprocity, procedures for arranging travel by journalists of the participating States in the country where they are exercising their profession, and to provide progressively greater opportunities for such travel, subject to the observance of regulations relating to the existence of areas closed for security reasons,

• ensure that requests by such journalists for such travel receive, in so far as possible, an expeditious response, taking into account the time scale of the request;

• increase the opportunities for journalists of the participating States to communicate personally with their sources, including organizations and official institutions;

• grant to journalists of the participating States the right to import, subject only to its being taken out again, the technical equipment (photographic, cinematographic, tape recorder, radio and television) necessary for the exercise of their profession;*)

• enable journalists of the other participating States, whether permanently or tempo- rarily accredited, to transmit completely, normally and rapidly by means recognized by the participating States to the information organs which they represent, the results of their professional activity, including tape recordings and undeveloped film, for the purpose of publication or of broadcasting on the radio or television.

The participating States reaffirm that the legitimate pursuit of their professional activ- ity will neither ender journalists liable to expulsion nor otherwise penalize them. If an accredited journalist is expelled, he will be informed of the reasons for this act and may submit an application for re-examination of his case.

Madrid 1983 (Co-operation in Humanitarian and Other Fields) [The participating States] will favour the further expansion of co-operation among mass media and their representatives, especially between the editorial staffs of press agen- cies, newspapers, radio and television organizations as well as film companies. They will encourage a more regular exchange of news, articles, supplements and broadcasts as well as the exchange of editorial staff for better knowledge of respective practices. On the basis of reciprocity, they will improve the material and technical facilities pro- vided for permanently or temporarily accredited television and radio reporters. Moreo- ver, they will facilitate direct contacts among journalists as well as contacts within the framework of professional organizations.

They will decide without undue delay upon visa applications from journalists and reex- amine within a reasonable time frame applications which have been refused. Moreover,

* While recognizing that appropriate local personnel are employed by foreign journalists in many instances, the participating States note that the above provisions would be applied, subject to the observance of the appropriate rules, to persons from the other participating States, who are regularly and professionally engaged as technicians, photographers or cameramen of the press, radio, television or cinema.

116 OSCE Human Dimension Commitments pa rt II Civil and Political Rights

journalists wishing to travel for personal reasons and not for the purpose of reporting shall enjoy the same treatment as other visitors from their country of origin.

They will grant permanent correspondents and members of their families living with them multiple entry and exit visas valid for one year.

The participating States will examine the possibility of granting, where necessary on the basis of bilateral arrangements, accreditation and related facilities to journalists from other participating States who are permanently accredited in third countries.

They will facilitate travel by journalists from other participating States within their ter- ritories, inter alia by taking concrete measures where necessary, to afford them oppor- tunities to travel more extensively, with the exception of areas closed for security rea- sons. They will inform journalists in advance, whenever possible, if new areas are closed for security reasons.

They will further increase the possibilities and, when necessary, improve the conditions for journalists from other participating States to establish and maintain personal con- tacts and communication with their sources.

They will, as a rule, authorize radio and television journalists, at their request, to be accompanied by their own sound and film technicians and to use their own equipment.

Similarly, journalists may carry with them reference material, including personal notes and files, to be used strictly for their professional purposes*.

Vienna 1989 (Co-operation in Humanitarian and Other Fields) (34) (…) They will make further efforts to facilitate the freer and wider dissemination of information of all kinds, to encourage co-operation in the field of information and to improve the working conditions for journalists.

(…)

(…) they will

• ensure that radio services operating in accordance with the ITU Radio Regulations can be directly and normally received in their States (…)

(37) They will encourage radio and television organizations, on the basis of arrange- ments between them, to broadcast live, especially in the organizing countries, pro- grammes and discussions with participants from different States and to broadcast statements of and interviews with political and other personalities from the participat- ing States. * In this context it is understood that import of printed matter may be subject to local regulations which will be applied with due regard to the journalists‘ need for adequate working material. The participating States will, where necessary, facilitate the establishment and operation, in their capitals, of press centres or institutions performing the same functions, open to the national and foreign press with suitable working facilities for the latter. They will also consider further ways and means to assist journalists from other participating States and thus to enable them to resolve practical problems they may encounter.

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(38) They will encourage radio and television organizations to report on different aspects of life in other participating States and to increase the number of telebridges between their countries.

(39) Recalling that the legitimate pursuit of journalists' professional activity will nei- ther render them liable to expulsion nor otherwise penalize them, they will refrain from taking restrictive measures such as withdrawing a journalist's accreditation or expel- ling him because of the content of the reporting of the journalist or of his information media.

(40) They will ensure that, in pursuing this activity, journalists, including those repre- senting media from other participating States, are free to seek access to and maintain contacts with public and private sources of information and that their need for profes- sional confidentiality is respected.

(41) They will respect the copyright of journalists.

(42) On the basis of arrangements between them, where necessary, and for the purpose of regular reporting, they will grant accreditation, where it is required, and multiple entry visas to journalists from other participating States, regardless of their domicile. On this basis they will reduce to a maximum of two months the period for issuing both accreditation and multiple entry visas to journalists.

(43) They will facilitate the work of foreign journalists by providing relevant informa- tion, on request, on matters of practical concern, such as import regulations, taxation and accommodation.

(44) They will ensure that official press conferences and, as appropriate, other similar official press events are also open to foreign journalists, upon accreditation, where this is required.

Copenhagen 1990 (7) (…) the participating States will

(…)

(7.8) - provide that no legal or administrative obstacle stands in the way of unimpeded access to the media on a non-discriminatory basis for all political groupings and indi- viduals wishing to participate in the electoral process;

Moscow 1991 (26) The participating States reaffirm the right to freedom of expression, including (…) the right of the media to collect, report and disseminate information, news and opin- ions. Any restriction in the exercise of this right will be prescribed by law and in accord- ance with international standards. They further recognize that independent media are essential to a free and open society and accountable systems of government and are of particular importance in safeguarding human rights and fundamental freedoms.

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(26.1) They consider that the print and broadcast media in their territory should enjoy unrestricted access to foreign news and information services. The public will enjoy sim- ilar freedom to receive and impart information and ideas without interference by pub- lic authority regardless of frontiers, including through foreign publications and foreign broadcasts. Any restriction in the exercise of this right will be prescribed by law and in accordance with international standards.

(26.2) The participating States will not discriminate against independent media with respect to affording access to information, material and facilities.

(…)

(28.9) The participating States will endeavour to maintain freedom of expression and freedom of information, consistent with their international obligations and commit- ments, with a view to enabling public discussion on the observance of human rights and fundamental freedoms as well as on the lifting of the state of public emergency. They will, in conformity with international standards regarding the freedom of expression, take no measures aimed at barring journalists from the legitimate exercise of their pro- fession other than those strictly required by the exigencies of the situation.

(…)

(34) The participating States will adopt, where appropriate, all feasible measures to pro- tect journalists engaged in dangerous professional missions, particularly in cases of armed conflict, and will co-operate to that effect. These measures will include tracing mission journalists, ascertaining their fate, providing appropriate assistance and facili- tating their return to their families.

Budapest 1994 (Decisions: VIII. The Human Dimension) 36. The participating States reaffirm that freedom of expression is a fundamental human right and a basic component of a democratic society. In this respect, independent and pluralistic media are essential to a free and open society and accountable systems of government. They take as their guiding principle that they will safeguard this right.

37. They condemn all attacks on and harassment of journalists and will endeavour to hold those directly responsible for such attacks and harassment accountable.

38. They further note that fomenting hatred and ethnic tension through the media, especially by governments, can serve as an early warning of conflict.

Lisbon 1996 (Summit Declaration) 9. (...) Among the acute problems within the human dimension, the continuing viola- tions of human rights, such as (...) threats to independent media (…) continue to endan- ger stability in the OSCE region. We are committed to continuing to address these problems.

(…)

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11. Freedom of the press and media are among the basic prerequisites for truly demo- cratic and civil societies (…)

Copenhagen 1997 (Annex 1: Permanent Council Decision No. 193, Mandate of the OSCE Representative on Freedom of the Media) 1. The participating States (…) recall in particular that freedom of expression is a fun- damental and internationally recognized human right and a basic component of a dem- ocratic society and that free, independent and pluralistic media are essential to a free and open society and accountable systems of government. Bearing in mind the princi- ples and commitments they have subscribed to within the OSCE (…), the participating States decide to establish, under the aegis of the Permanent Council, an OSCE Repre- sentative on Freedom of the Media. The objective is to strengthen the implementation of relevant OSCE principles and commitments as well as to improve the effectiveness of concerted action by the participating States based on their common values. The par- ticipating States confirm that they will co-operate fully with the OSCE Representative on Freedom of the Media. He or she will assist the participating States, in a spirit of co- operation, in their continuing commitment to the furthering of free, independent and pluralistic media (…)

Istanbul 1999 (Summit Declaration) 27. (…) We are deeply concerned about the exploitation of media in areas of conflict to foment hatred and ethnic tension and the use of legal restrictions and harassment to deprive citizens of free media. We underline the need to secure freedom of expression, which is an essential element of political discourse in any democracy. We support the Office of the Representative on Freedom of the Media in its efforts to promote free and independent media.

Istanbul 1999 (Charter for European Security: III. Our Common Response) 26. We reaffirm the importance of independent media and the free flow of information as well as the public’s access to information. We commit ourselves to take all necessary steps to ensure the basic conditions for free and independent media and unimpeded transborder and intra-State flow of information (…)

C. Freedom of Cultural or Artistic Expression See also: á Part II. 3.2.3: Cultural Rights/Cultural Heritage

Paris 1990 (A New Era of Democracy, Peace and Unity) We recognize the essential contribution of our common European culture and our shared values in overcoming the division of the continent. Therefore, we underline our attachment to creative freedom and to the protection and promotion of our cultural and spiritual heritage, in all its richness and diversity.

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Cracow 1991 (I. Culture and Freedom) 1. The participating States emphasize that respect for human rights and fundamental freedoms is essential to the full development of cultural creativity.

2. The State and the public authorities will refrain from infringing upon the freedom of artistic creation.

3. The participating States undertake to promote and protect the free and unhindered development of artistic creativity; they recognize the important role of the individual artist in society and will respect and protect the integrity of creative work.

4. They recognize the need for governments to strike a balance between their dual responsibility of acting in support of, and ensuring the freedom of, cultural activity.

5. They further acknowledge that, given the variety of cultural activity in the participat- ing States, there are many ways in which governments might choose to respond effec- tively to concerns relating to the cultural heritage.

6. The participating States recall their respect for freedom of expression and, in connec- tion with the exercise of that freedom in the artistic and cultural fields, state as follows:

6.1 The publication of written works, the performance and broadcasting of musical, the- atrical and audiovisual works, and the exhibition of pictorial or sculptural works will not be subject to restriction or interference by the State save such restrictions as are pre- scribed by domestic legislation and are fully consistent with international standards.

6.2 They express their conviction that the existence, in the artistic and cultural fields, of a diversity of means of dissemination independent of the State, such as publishing houses, radio broadcasting, cinema and television enterprises, theatres and galleries, helps to ensure pluralism and the freedom of artistic and cultural expression.

7. The participating States recall their commitments to unhindered access to culture, and agree as follows:

7.1 While duly respecting intellectual property rights, any person or independent organ- ization has the right to own privately, use and reproduce all kinds of cultural materials, such as books, publications and audiovisual recordings, and the means of reproducing them.

Moscow 1991 (35) The participating States reaffirm that guaranteeing the freedom of artistic creation and preserving the cultural heritage form part of the human dimension of the CSCE. They consider that independent intellectual and cultural life is crucial for the mainte- nance of free societies and democratic institutions. They will implement their commit- ments in the cultural field, as laid down in the Document of the Cracow Symposium on the Cultural Heritage (…)

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3.1.11 Freedom of Movement, Human Contacts, and Family Reunification See also: á Part II. 4.4: Refugees, Displaced Persons, Returnees, and Stateless Persons á Part II. 4.5: Migrant Workers

Helsinki 1975 (Co-operation in Humanitarian and Other Fields) The participating States,

Considering the development of contacts to be an important element in the strengthen- ing of friendly relations and trust among peoples

(…)

Make it their aim to facilitate freer movement and contacts, individually and collec- tively, whether privately or officially, among persons, institutions and organizations of the participating States, and to contribute to the solution of the humanitarian problems that arise in that connexion,

Declare their readiness to these ends to take measures which they consider appropri- ate and to conclude agreements or arrangements among themselves, as may be needed, and

Express their intention now to proceed to the implementation of the following:

(a) Contacts and Regular Meetings on the Basis of Family Ties

In order to promote further development of contacts on the basis of family ties the par- ticipating States will favourably consider applications for travel with the purpose of allowing persons to enter or leave their territory temporarily, and on a regular basis if desired, in order to visit members of their families.

Applications for temporary visits to meet members of their families will be dealt with without distinction as to the country of origin or destination: existing requirements for travel documents and visas will be applied in this spirit. The preparation and issue of such documents and visas will be effected within reasonable time limits, cases of urgent necessity — such as serious illness or death — will be given priority treatment. They will take such steps as may be necessary to ensure that the fees for official travel docu- ments and visas are acceptable.

They confirm that the presentation of an application concerning contacts on the basis of family ties will not modify the rights and obligations of the applicant or of members of his family.

(b) Reunification of Families

The participating States will deal in a positive and humanitarian spirit with the appli- cations of persons who wish to be reunited with members of their family, with special

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attention being given to requests of an urgent character - such as requests submitted by persons who are ill or old.

They will deal with applications in this field as expeditiously as possible. They will lower where necessary the fees charged in connexion with these applications to ensure that they are at a moderate level.

Applications for the purpose of family reunification which are not granted may be renewed at the appropriate level and will be reconsidered at reasonably short intervals by the authorities of the country of residence or destination, whichever is concerned, under such circumstances fees will be charged only when applications are granted.

Persons whose applications for family reunification are granted may bring with them or ship their household and personal effects; to this end the participating States will use all possibilities provided by existing regulations.

Until members of the same family are reunited meetings and contacts between them may take place in accordance with the modalities for contacts on the basis of family ties.

The participating States will support the efforts of Red Cross and Red Crescent Societies concerned with the problems of family reunification.

They confirm that the presentation of an application concerning family reunification will not modify the rights and obligations of the applicant or of members of his family.

The receiving participating State will take appropriate care with regard to employ- ment for persons from other participating States who take up permanent residence in that State in connexion with family reunification with its citizens and see that they are afforded opportunities equal to those enjoyed by its own citizens for education, medical assistance and social security.

(c) Marriage between Citizens of Different States

The participating States will examine favourably and on the basis of humanitarian con- siderations requests for exit or entry permits from persons who have decided to marry a citizen from another participating State.

The processing and issuing of the documents required for the above purposes and for the marriage will be in accordance with the provisions accepted for family reunifica- tion.

In dealing with requests from couples from different participating States, once married, to enable them and the minor children of their marriage to transfer their permanent residence to a State in which either one is normally a resident, the participating States will also apply the provisions accepted for family reunification.

(d) Travel for Personal or Professional Reasons

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The participating States intend to facilitate wider travel by their citizens for personal or professional reasons and to this end they intend in particular:

• gradually to simplify and to administer flexibly the procedures for exit and entry;

• to ease regulations concerning movement of citizens from the other participating States in their territory, with due regard to security requirements.

They will endeavour gradually to lower, where necessary, the fees for visas and official travel documents.

They intend to consider, as necessary, means — including, in so far as appropriate, the conclusion of multilateral or bilateral consular conventions or other relevant agree- ments or understandings — for the improvement of arrangements to provide consular services, including legal and consular assistance.

Madrid 1983 (Co-operation in Humanitarian and Other Fields) The participating States will favourably deal with applications relating to contacts and regular meetings on the basis of family ties, reunification of families and marriage between citizens of different States and will decide upon them in the same spirit. They will decide upon these applications in emergency cases for family meetings as expeditiously as possible, for family reunification and for marriage between citizens of different States in normal practice within six months and for other family meetings within gradually decreasing time limits.

They confirm that the presentation or renewal of applications in these cases will not modify the rights and obligations of the applicants or of members of their families con- cerning inter alia employment, housing, residence status, family support, access to social, economic or educational benefits, as well as any other rights and obligations flowing from the laws and regulations of the respective participating State.

The participating States will provide the necessary information on the procedures to be followed by the applicants in these cases and on the regulations to be observed, as well as, upon the applicant’s request, provide the relevant forms.

They will, where necessary, gradually reduce fees charged in connection with these applications, including those for visas and passports, in order to bring them to a moder- ate level in relation to the average monthly income in the respective participating State.

Applicants will be informed as expeditiously as possible of the decision that has been reached. In case of refusal applicants will also be informed of their right to renew appli- cations after reasonably short intervals.

Vienna 1989 (Questions Relating to Security in Europe: Principles) (20) The participating States will respect fully the right of everyone

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• to freedom of movement and residence within the borders of each State, and

• to leave any country, including his own, and to return to his country.

Vienna 1989 (Co-operation in Humanitarian and Other Fields) (1) In implementing the human contacts provisions of the Final Act, the Madrid Con- cluding Document and the present Document, [the participating States] will fully respect their obligations under international law as referred to in the subchapter of the present Document devoted to principles, in particular that everyone shall be free to leave any country, including his own, and to return to his country, as well as their inter- national commitments in this field.

(2) They will ensure that their policies concerning entry into their territories are fully consistent with the aims set out in the relevant provisions of the Final Act, the Madrid Concluding Document and the present Document.

(3) They will take the necessary steps to find solutions as expeditiously as possible, but in any case within six months, to all applications based on the human contacts provi- sions of the Final Act and the Madrid Concluding Document, outstanding at the con- clusion of the Vienna Follow-up Meeting.

(4) Thereafter they will conduct regular reviews in order to ensure that all applications based on the human contacts provisions of the Final Act and of the other aforemen- tioned CSCE documents are being dealt with in a manner consistent with those provi- sions.

(5) They will decide upon applications relating to family meetings in accordance with the Final Act and the other aforementioned CSCE documents in as short a time as pos- sible and in normal practice within one month.

(6) In the same manner they will decide upon applications relating to family reunifica- tion or marriage between citizens of different States, in normal practice within three months.

(7) In dealing favourably with applications relating to family meetings, they will take due account of the wishes of the applicant, in particular on the timing and sufficiently long duration of such meetings, and on travelling together with other members of his family for joint family meetings.

(8) In dealing favourably with applications relating to family meetings, they will also allow visits to and from more distant relatives.

(9) In dealing favourably with applications relating to family reunification or marriage between citizens of different States, they will respect the wishes of the applicants on the country of destination ready to accept them.

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(10) They will pay particular attention to the solution of problems involving the reunifi- cation of minor children with their parents. In this context and on the basis of the rel- evant provisions of the Final Act and of the other aforementioned CSCE documents, they will ensure

• that an application for this purpose submitted while the child is a minor will be dealt with favourably and expeditiously in order to effect the reunification without delay, and

• that adequate arrangements are made to protect the interests and welfare of the chil- dren concerned.

(11) They will consider the scope for gradually reducing and eventually eliminating any requirement which might exist for travellers to obtain local currency in excess of actual expenditure, giving priority to persons traveling for the purpose of family meetings. They will accord such persons the opportunity in practice to bring in or to take out with them personal possessions or gifts.

(12) They will pay immediate attention to applications for travel of an urgent humani- tarian nature and deal with them favourably as follows:

• They will decide within three working days upon applications relating to visits to a seriously ill or dying family member, travel to attend the funeral of a family member or travel by those who have a proven need of urgent medical treatment or who can be shown to be critically or terminally ill.

• They will decide as expeditiously as possible upon applications relating to travel by those who are seriously ill or by the elderly, and other travel of an urgent humanitarian nature.

• They will intensify efforts by their local, regional and central authorities concerned with the implementation of the above, and ensure that charges for giving priority treatment to such applications do not exceed costs actually incurred.

(13) In dealing with applications for travel for family meetings, family reunification or marriage between citizens of different States, they will ensure that acts or commissions by members of the applicant's family do not adversely affect the rights of the applicant as set forth in the relevant international instruments.

(14) They will ensure that all documents necessary for applications based on the human contacts provisions of the Final Act and of the other aforementioned CSCE documents are easily accessible to the applicant. The documents will remain valid throughout the application procedure. In the event of a renewed application the documents already submitted by the applicant in connection with previous applications will be taken into consideration.

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(15) They will simplify practices and gradually reduce administrative requirements for applications based on the human contacts provisions of the Final Act and of the other aforementioned CSCE documents.

(16) They will ensure that, when applications based on the human contacts provisions of the Final Act and of the other aforementioned CSCE documents are refused for rea- sons specified in the relevant international instruments, the applicant is promptly pro- vided in writing with an official notification of the grounds on which the decision was based. As a rule and in all cases where the applicant so requests, he will be given the necessary information about the procedure for making use of any effective adminis- trative or judicial remedies against the decision available to him as envisaged in the abovementioned international instruments. In cases where exit for permanent settle- ment abroad is involved, this information will be provided as part of the official notifi- cation foreseen above.

(17) If in this context an individual's application for travel abroad has been refused for reasons of national security, they will ensure that, within strictly warranted time limits, any restriction on that individual’s travel is as short as possible and is not applied in an arbitrary manner. They will also ensure that the applicant can have the refusal reviewed within six months and, should the need arise, at regular intervals thereafter so that any changes in the circumstances surrounding the refusal, such as time elapsed since the applicant was last engaged in work or duties involving national security, are taken into account. Before individuals take up such work or duties they will be formally notified if and how this could affect applications they might submit for such travel.

(18) Within one year of the conclusion of the Vienna Follow-up Meeting they will pub- lish and make easily accessible, where this has not already been done, all their laws and statutory regulations concerning movement by individuals within their territory and travel between States.

(19) In dealing favourably with applications based on the human contacts provisions of the Final Act and of the other aforementioned CSCE documents, they will ensure that these are dealt with in good time in order, inter alia, to take due account of important family, personal or professional considerations significant for the applicant.

(20) They will deal favourably with applications for travel abroad without distinction of any kind, such as race, colour, sex, language, religion, political or other opinion, national or social origin, property, birth, age or other status. They will ensure that any refusal does not affect applications submitted by other persons.

(21) They will further facilitate travel on an individual or collective basis for personal or professional reasons and for tourism, such as travel by delegations, groups and individ- uals. To this end they will reduce the time for the consideration of applications for such travel to a minimum.

(22) They will give serious consideration to proposals for concluding agreements on the issuing of multiple entry visas and the reciprocal easing of visa processing formali-

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ties, and consider possibilities for the reciprocal abolition of entry visas on the basis of agreements between them.

(23) They will consider adhering to the relevant multilateral instruments as well as con- cluding complementary or other bilateral agreements, if necessary, in order to improve arrangements for ensuring effective consular, legal and medical assistance for citizens of other participating States temporarily on their territory.

(24) They will take any necessary measures to ensure that citizens of other participat- ing States temporarily on their territory for personal or professional reasons, inter alia for the purpose of participating in cultural, scientific and educational activities, are afforded appropriate personal safety, where this is not already the case.

(…)

(31) They will ensure that the status of persons belonging to national minorities or regional cultures on their territories is equal to that of other citizens with regard to human contacts under the Final Act and the other aforementioned CSCE documents and that these persons can establish and maintain such contacts through travel and other means of communication, including contacts with citizens of other States with whom they share a common national origin or cultural heritage.

(32) They will allow believers, religious faiths and their representatives, in groups or on an individual basis, to establish and maintain direct personal contacts and commu- nication with each other, in their own and other countries, inter alia through travel, pilgrimages and participation in assemblies and other religious events. In this context and commensurate with such contacts and events, those concerned will be allowed to acquire, receive and carry with them religious publications and objects related to the practice of their religion or belief.

Copenhagen 1990 (9) The participating States reaffirm that

(…)

(9.5) - they will respect the right of everyone to leave any country, including his own, and to return to his country, consistent with a State’s international obligations and CSCE commitments. Restrictions on this right will have the character of very rare exceptions, will be considered necessary only if they respond to a specific public need, pursue a legitimate aim and are proportionate to that aim, and will not be abused or applied in an arbitrary manner;

(…)

(10.4) - allow members of such groups and organizations to have unhindered access to and communication with similar bodies within and outside their countries and with

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international organizations, to engage in exchanges, contacts and co-operation with such groups and organizations (…)

(…)

(19) The participating States affirm that freer movement and contacts among their citi- zens are important in the context of the protection and promotion of human rights and fundamental freedoms. They will ensure that their policies concerning entry into their territories are fully consistent with the aims set out in the relevant provisions of the Final Act, the Madrid Concluding Document and the Vienna Concluding Document. While reaffirming their determination not to recede from the commitments contained in CSCE documents, they undertake to implement fully and improve present commit- ments in the field of human contacts, including on a bilateral and multilateral basis. In this context they will

(19.1) - strive to implement the procedures for entry into their territories, including the issuing of visas and passport and customs control, in good faith and without unjustified delay. Where necessary, they will shorten the waiting time for visa decisions, as well as simplify practices and reduce administrative requirements for visa applications;

(19.2) - ensure, in dealing with visa applications, that these are processed as expedi- tiously as possible in order, inter alia, to take due account of important family, personal or professional considerations, especially in cases of an urgent, humanitarian nature;

(19.3) - endeavour, where necessary, to reduce fees charged in connection with visa applications to the lowest possible level.

Paris 1990 (A New Era of Democracy, Peace and Unity) In accordance with our CSCE commitments, we stress that free movement and con- tacts among our citizens as well as the free flow of information and ideas are crucial for the maintenance and development of free societies and flourishing cultures (…)

Moscow 1991 (33) The participating States will remove all legal and other restrictions with respect to travel within their territories for their own nationals and foreigners, and with respect to residence for those entitled to permanent residence, except those restrictions which may be necessary and officially declared for military, safety, ecological or other legit- imate government interests, in accordance with their national laws, consistent with CSCE commitments and international human rights obligations. The participating States undertake to keep such restrictions to a minimum.

Budapest 1994 (Decisions: VIII. The Human Dimension) 40. They will encourage administrative authorities dealing with citizens of other States to fully implement the CSCE commitments concerning travel and will refrain from degrading treatment and other outrages against personal dignity.

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3.1.12 Respect for Private and Family Life See also: á Part II. 3.1.11: Freedom of Movement, Human Contacts, and Family Reunification

Moscow 1991 (24) The participating States reconfirm the right to the protection of private and fam- ily life, domicile, correspondence and electronic communications. In order to avoid any improper or arbitrary intrusion by the State in the realm of the individual, which would be harmful to any democratic society, the exercise of this right will be subject only to such restrictions as are prescribed by law and are consistent with internationally rec- ognized human rights standards. In particular, the participating States will ensure that searches and seizures of persons and private premises and property will take place only in accordance with standards that are judicially enforceable.

3.1.13 Right to Nationality See also: á Part II. 4.4: Refugees, Displaced Persons, Returnees, and Stateless Persons

Helsinki 1992 (Decisions: VI. The Human Dimension) The participating States

(55) Recognize that everyone has the right to a nationality and that no one should be deprived of his/her nationality arbitrarily;

(56) Underline that all aspects of nationality will be governed by the process of law. They will, as appropriate, take measures, consistent with their constitutional framework not to increase statelessness;

Istanbul 1999 (Charter for European Security: III. Our Common Response) 19. (…) We reaffirm our recognition that everyone has the right to a nationality and that no one should be deprived of his or her nationality arbitrarily. We commit ourselves to continue our efforts to ensure that everyone can exercise this right. We also commit ourselves to further the international protection of stateless persons.

3.1.14 Property Rights Bonn 1990 The participating States (…) (w)ill endeavour to achieve or maintain the following:

(…)

• Full recognition and protection of all types of property including private property, and the right of citizens to own and use them, as well as intellectual property rights;

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• The right to prompt, just and effective compensation in the event private property is taken for public use;

(…)

Copenhagen 1990 (9) The participating States reaffirm that

(…)

(9.6) - everyone has the right peacefully to enjoy his property either on his own or in common with others. No one may be deprived of his property except in the public inter- est and subject to the conditions provided for by law and consistent with international commitments and obligations.

Paris 1990 (A New Era of Democracy, Peace and Unity) We affirm that, without discrimination (…) everyone (…) has the right:

(…)

to own property alone or in association and to exercise individual enterprise (…)

3.2 Economic, Social, and Cultural Rights

3.2.1 General Provisions Helsinki 1975 (Questions Relating to Security in Europe: 1.(a) Declaration on Principles Guiding Relations between Participating States – Principles VII-IX) [The participating States] will promote and encourage the effective exercise of …eco- nomic, social, cultural and other rights and freedoms all of which derive from the inher- ent dignity of the human person and are essential for his free and full development.

(…)

They will endeavour, in developing their cooperation, to improve the well-being of peo- ples and contribute to the fulfilment of their aspirations through, inter alia, the bene- fits resulting from increased mutual knowledge and from progress and achievement in the economic, scientific, technological, social, cultural and humanitarian fields. They will take steps to promote conditions favourable to making these benefits available to all; they will take into account the interest of all in the narrowing of differences in the levels of economic development, and in particular the interest of developing countries throughout the world.

Madrid 1983 (Questions Relating to Security in Europe: Principles) [The participating States] similarly stress their determination to develop their laws and regulations in the field of (…) economic, social, cultural and other human rights and

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fundamental freedoms; they also emphasize their determination to ensure the effective exercise of these rights and freedoms.

Vienna 1989 (Questions Relating to Security in Europe: Principles) (12) (…) They recognize that (…) economic, social, cultural and other rights and freedoms are all of paramount importance and must be fully realized by all appropri- ate means.

(13) In this context they will

(13.1) - develop their laws, regulations and policies in the field of (…) economic, social, cultural and other human rights and fundamental freedoms and put them into practice in order to guarantee the effective exercise of these rights and freedoms;

(13.2) - consider acceding to (…) the International Covenant on Economic, Social and Cultural Rights and other relevant international instruments, if they have not yet done so;

(…)

(14) The participating States recognize that the promotion of economic, social, cultural rights as well as of civil and political rights is of paramount importance for human dig- nity and for the attainment of the legitimate aspirations of every individual.

They will therefore continue their efforts with a view to achieving progressively the full realization of economic, social and cultural rights by all appropriate means, including in particular by the adoption of legislative measures. In this context they will pay special attention to problems in the areas of employment, housing, social security, health, edu- cation and culture. They will promote constant progress in the realization of all rights and freedoms within their countries, as well as in the development of relations among themselves and with other States, so that everyone actually enjoys to the full his eco- nomic, social and cultural rights as well as his civil and political rights.

Paris 1990 (A New Era of Democracy, Peace and Unity) We affirm that, without discrimination (…) everyone (…) has the right:

(…)

to enjoy his economic, social and cultural rights.

3.2.2 Economic and Social Rights A. General Provisions Bonn 1990 [The participating States] will endeavour to achieve or maintain the following:

(…)

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• Policies that promote social justice and improve living and working conditions;

(…)

Paris 1990 (A New Era of Democracy, Peace and Unity) Economic liberty, social justice and environmental responsibility are indispensable for prosperity.

The free will of the individual, exercised in democracy and protected by the rule of law, forms the necessary basis for successful economic and social development. We will pro- mote economic activity which respects and upholds human dignity.

Freedom and political pluralism are necessary elements in our common objective of developing market economies towards sustainable economic growth, prosperity, social justice, expanding employment and efficient use of economic resources. The success of the transition to market economy by countries making efforts to this effect is important and in the interest of us all. It will enable us to share a higher level of prosperity which is our common objective. We will co-operate to this end.

Istanbul 1999 (Charter for European Security: II. Our Common Challenges) 5. Acute economic problems and environmental degradation may have serious impli- cations for our security (…) We will strengthen our responses to such threats through continued economic and environmental reforms, by stable and transparent frameworks for economic activity and by promoting market economies, while paying due attention to economic and social rights (…)

Maastricht 2003 (OSCE Strategy to Address Threats to Security and Stability in the Twenty-First Century) 14. Deepening economic and social disparities, lack of rule of law, weak governance in public and corporate spheres, corruption, widespread poverty and high unemployment are among the economic factors, which threaten stability and security. They can pro- vide a breeding ground for other major threats. Environmental degradation, unsustain- able use of natural resources, mismanagement of wastes and pollution affect ecologi- cal systems and have a substantial negative impact on the health, welfare, stability and security of States. Ecological disasters may also have such effects. Problems of govern- ance connected to these factors have a direct undermining effect and at the same time reduce the capacity to ensure sustainable economic and social development as well as to effectively address economic and environmental challenges and threats to security and stability.

Maastricht 2003 (OSCE Strategy Document for the Economic and Environmental Dimension) 2.2 Strengthening good governance

(…)

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Social conditions

2.2.13 Good governance and sustainable development imply policies and systems that promote social partnership and cohesion. We will work for improved access for all to basic social benefits, such as affordable health services, pensions and education, and for adequate levels of protection of socially vulnerable groups, and the prevention of social exclusion.

2.2.14 We are determined to take measures to improve social conditions, including by identifying and targeting vulnerable groups in society, providing adequate and effective safety nets, strengthening health services, increasing employment opportunities and implementing rehabilitation programmes.

(…)

2.3 Ensuring sustainable development

2.3.3 We support the efforts of the participating States to implement policies of poverty reduction and sustainable development, including the national poverty reduction pro- grammes in countries with economies in transition. We will encourage the provision of the necessary advice and assistance by international organizations and institutions hav- ing the relevant expertise and resources.

B. Workers’ Rights See also: á Part II. 4.5: Migrant Workers

Madrid 1983 (Questions Relating to Security in Europe: Principles) The participating States will ensure the right of workers freely to establish and join trade unions, the right of trade unions freely to exercise their activities and other rights as laid down in relevant international instruments. They note that these rights will be exercised in compliance with the law of the State and in conformity with the State’s obligations under international law. They will encourage, as appropriate, direct contacts and communication among such trade unions and their representatives.

Bonn 1990 (Preamble) (…) the participating States,

Recognizing the relationship between political pluralism and market economies, and being committed to the principles concerning:

(…)

• Economic activity that accordingly upholds human dignity and is free from forced labour, discrimination against workers on grounds of race, sex, language, political

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opinion or religion, or denial of the rights of workers freely to establish or join inde- pendent trade unions,

Will endeavour to achieve or maintain the following (…)

Copenhagen 1990 (9) The participating States reaffirm that

(...)

(9.3) - the right of association will be guaranteed. The right to form and - subject to the general right of a trade union to determine its own membership - freely to join a trade union will be guaranteed. These rights will exclude any prior control. Freedom of asso- ciation for workers, including the freedom to strike, will be guaranteed, subject to limi- tations prescribed by law and consistent with international standards;

3.2.3 Cultural Rights/Cultural Heritage See also: á Part II. 3.1.10 C: Freedom of Cultural or Artistic Expression á Part II. 4.1: National Minorities á Part II. 4.2: Roma and Sinti á Part II. 5.3.5: Promotion of Tolerance, Understanding, and Respect, Including Remembrance á Vol. 2: Helsinki 1975 (Co-operation in Humanitarian and Other Fields > 3. Co-operation and Exchanges in the Field of Culture) á Vol. 2: Madrid 1983 (Co-operation in Humanitarian and Other Fields > Co-operation and Exchanges in the Field of Culture) á Vol. 2: Vienna 1989 (Co-operation in Humanitarian and Other Fields > Co-operation and Exchanges in the Field of Culture) á Vol. 2: Cracow 1991 (Principal Areas of Preservation and Co-operation)

Cracow 1991 (Preamble) [The participating States] take note of the interrelationship between cultural life and the well-being of their peoples, and the special importance that this has for democratic countries in transition towards a market economy. They encourage support, as already undertaken, and the on-going assistance to those countries in preserving and protect- ing their cultural heritage.

(…)

Regional cultural diversity is an expression of the richness of the common cultural iden- tity of the participating States. Its preservation and protection contribute to building a democratic, peaceful and united Europe.

(…)

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II. Culture and Heritage

10. The participating States express their deeply-held conviction that the cultural herit- age of each one of them constitutes an inalienable part of their civilization, their mem- ory and their common history, to be transmitted to future generations.

11. The participating States take note of the definitions of archaeological property, of the cultural heritage and of the architectural heritage in the relevant international doc- uments of the Council of Europe and UNESCO.

12. The complete and lasting documentation of sites, structures, cultural landscapes, objects and cultural systems, including historical, religious and cultural monuments, as they presently exist, is one of the most important legacies to the cultural heritage that can be provided for future generations.

13. The participating States also recognize as vital elements of their common cultural heritage, the heritage of those cultures which, because of language barriers, climate and geographical distance, limited population or turns of history and political circum- stances, have not been widely accessible.

14. The participating states will endeavour to protect the cultural heritage, in compli- ance with relevant international agreements and with their domestic legislation.

15. The participating States will pay heed to the preservation, enhancement and restora- tion of the cultural heritage when drawing up cultural, environmental and regional and urban planning policies. They further note the importance of relating individual con- servation projects to their authentic urban or rural environment, where appropriate and whenever possible.

16. The participating States recognize the importance of making their cultural herit- age as widely accessible as possible. In doing so, they will pay particular attention to the needs of the handicapped.

16.1 They will endeavour to safeguard the heritage from damage which may be caused by management of and public access to it.

16.2 They will promote public awareness of the value of the heritage and the need to protect it.

16.3 They will seek, wherever possible, to facilitate access for researchers and scholars to relevant primary documents and archive materials.

17. The participating States note favourably the role of non-governmental associations in promoting awareness of the heritage and the need for its protection.

18. Partnerships among diverse groups at the local, regional and national level, from both the private and the public sector, are valuable for ensuring the effective and rep- resentative preservation of the cultural heritage. The preservation and interpretation of

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the values and the cultural heritage of diverse groups will be enhanced with the involve- ment of those groups, which is conducive to the tolerance and respect for different cul- tures which are of paramount importance.

19. The participating States recognize the usefulness and importance of exchanging information on preserving the cultural heritage and acknowledge that the use of data banks, on a national and multilateral level, could make a useful contribution to this work.

Moscow 1991 (35) The participating States reaffirm that guaranteeing the freedom of artistic creation and preserving the cultural heritage form part of the human dimension of the CSCE. They consider that independent intellectual and cultural life is crucial for the mainte- nance of free societies and democratic institutions. They will implement their commit- ments in the cultural field, as laid down in the Document of the Cracow Symposium on the Cultural Heritage (…)

3.2.4 Right to Education See also: á Vol. 2: Helsinki 1975 (Co-operation in Humanitarian and Other Fields > 4. Co-operation and Exchanges in the Field of Education) á Vol. 2: Madrid 1983 (Co-operation in Humanitarian and Other Fields > Co-operation and Exchanges in the Field of Education) á Vol. 2: Vienna 1989 (Co-operation in Humanitarian and Other Fields > Co-operation and Exchanges in the Field of Education)

Vienna 1989 (Co-operation in Humanitarian and Other Fields) (63) [The participating States] will ensure access by all to the various types and levels of education without discrimination as to race, colour, sex, language, religion, political or other opinion, national or social origin, property, birth or other status.

Copenhagen 1990 (34) The participating States will endeavour to ensure that persons belonging to national minorities, notwithstanding the need to learn the official language or languages of the State concerned, have adequate opportunities for instruction of their mother tongue or in their mother tongue (…)

In the context of the teaching of history and culture in educational establishments, they will also take account of the history and culture of national minorities.

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4.1 National Minorities

See also: á Part I. 2.3.4 B: The High Commissioner on National Minorities á Part II. 4.2: Roma and Sinti á Part II. 5: Commitments Related to Equality, Tolerance, and Non-discrimination

4.1.1 Protection of Human Rights and Fundamental Freedoms, Including Equality of Opportunity and Non-discrimination Helsinki 1975 (Questions Relating to Security in Europe: 1.(a) Declaration on Principles Guiding Relations between Participating States – Principle VII) The participating States on whose territory national minorities exist will respect the right of persons belonging to such minorities to equality before the law, will afford them the full opportunity for the actual enjoyment of human rights and fundamental free- doms and will, in this manner, protect their legitimate interests in this sphere.

Madrid 1983 (Questions Relating to Security in Europe: Principles) [The participating States] stress also the importance of constant progress in ensur- ing the respect for and actual enjoyment of the rights of persons belonging to national minorities as well as protecting their legitimate interests as provided for in the Final Act.

Vienna 1989 (Questions Relating to Security in Europe: Principles) (18) The participating States will exert sustained efforts to implement the provisions of the Final Act and of the Madrid Concluding Document pertaining to national minori- ties. They will take all the necessary legislative, administrative, judicial and other meas- ures and apply the relevant international instruments by which they may be bound, to

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ensure the protection of human rights and fundamental freedoms of persons belonging to national minorities within their territory. They will refrain from any discrimination against such persons and will contribute to the realization of their legitimate interests and aspirations in the field of human rights and fundamental freedoms.

Copenhagen 1990 (30) The participating States recognize that the questions relating to national minori- ties can only be satisfactorily resolved in a democratic political framework based on the rule of law, with a functioning independent judiciary. This framework guarantees full respect for human rights and fundamental freedoms, equal rights and status for all citi- zens, the free expression of all their legitimate interests and aspirations, political plural- ism, social tolerance and the implementation of legal rules that place effective restraints on the abuse of governmental power.

(…)

They further reaffirm that respect for the rights of persons belonging to national minor- ities as part of universally recognized human rights is an essential factor for peace, jus- tice, stability and democracy in the participating States.

(31) Persons belonging to national minorities have the right to exercise fully and effec- tively their human rights and fundamental freedoms without any discrimination and in full equality before the law.

The participating States will adopt, where necessary, special measures for the purpose of ensuring to persons belonging to national minorities full equality with the other citi- zens in the exercise and enjoyment of human rights and fundamental freedoms.

(32) To belong to a national minority is a matter of a person’s individual choice and no disadvantage may arise from the exercise of such choice.

(…)

Persons belonging to national minorities can exercise and enjoy their rights individually as well as in community with other members of their group. No disadvantage may arise for a person belonging to a national minority on account of the exercise or non-exercise of any such rights.

(…)

(35) The participating States will respect the right of persons belonging to national minorities to effective participation in public affairs, including participation in the affairs relating to the protection and promotion of the identity of such minorities.

(…)

(36) The participating States recognize the particular importance of increasing con- structive co-operation among themselves on questions relating to national minorities.

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Such co-operation seeks to promote mutual understanding and confidence, friendly and good-neighbourly relations, international peace, security and justice.

Every participating State will promote a climate of mutual respect, understanding, co- operation and solidarity among all persons living on its territory, without distinction as to ethnic or national origin or religion, and will encourage the solution of problems through dialogue based on the principles of the rule of law.

(37) None of these commitments may be interpreted as implying any right to engage in any activity or perform any action in contravention of the purposes and principles of the Charter of the United Nations, other obligations under international law or the pro- visions of the Final Act, including the principle of territorial integrity of States.

(38) The participating States, in their efforts to protect and promote the rights of per- sons belonging to national minorities, will fully respect their undertakings under exist- ing human rights conventions and other relevant international instruments and con- sider adhering to the relevant conventions, if they have not yet done so, including those providing for a right of complaint by individuals.

(39) The participating States will co-operate closely in the competent international organizations to which they belong, including the United Nations and, as appropriate, the Council of Europe, bearing in mind their on-going work with respect to questions relating to national minorities.

Paris 1990 (A New Era of Democracy, Peace and Unity) (…) We further acknowledge that the rights of persons belonging to national minorities must be fully respected as part of universal human rights (...)

Geneva 1991 II.

The participating States stress the continued importance of a thorough review of imple- mentation of their CSCE commitments relating to persons belonging to national minor- ities.

They emphasize that human rights and fundamental freedoms are the basis for the pro- tection and promotion of rights of persons belonging to national minorities (…)

Issues concerning national minorities, as well as compliance with international obliga- tions and commitments concerning the rights of persons belonging to them, are mat- ters of legitimate international concern and consequently do not constitute exclusively an internal affair of the respective State.

They note that not all ethnic, cultural, linguistic or religious differences necessarily lead to the creation of national minorities.

OSCE Human Dimension Commitments 141 Human Rights with a Focus on Specific Groups pa rt II

III.

(…) the participating States consider that when issues relating to the situation of national minorities are discussed within their countries, they themselves should have the effective opportunity to be involved, in accordance with the decision-making proce- dures of each State (…)

They consider that special efforts must be made to resolve specific problems in a con- structive manner and through dialogue by means of negotiations and consultations with a view to improving the situation of persons belonging to national minorities.

They recognize that the promotion of dialogue between States, and between States and persons belonging to national minorities, will be most successful when there is a free flow of information and ideas between all parties. They encourage unilateral, bilateral and multilateral efforts by governments to explore avenues for enhancing the effective- ness of their implementation of CSCE commitments relating to national minorities.

The participating States further consider that respect for human rights and fundamen- tal freedoms must be accorded on a non-discriminatory basis throughout society. In areas inhabited mainly by persons belonging to a national minority, the human rights and fundamental freedoms of persons belonging to that minority, of persons belong- ing to the majority population of the respective State, and of persons belonging to other national minorities residing in these areas will be equally protected.

(…)

They will permit the competent authorities to inform the Office for Free Elections of all scheduled public elections on their territories, including those held below national level. The participating States will consider favourably, to the extent permitted by law, the presence of observers at elections held below the national level, including in areas inhabited by national minorities, and will endeavour to facilitate their access.

IV.

The participating States will create conditions for persons belonging to national minor- ities to have equal opportunity to be effectively involved in the public life, economic activities, and building of their societies.

In accordance with paragraph 31 of the Copenhagen Document, the participating States will take the necessary measures to prevent discrimination against individuals, particu- larly in respect of employment, housing and education, on the grounds of belonging or not belonging to a national minority. In that context, they will make provision, if they have not yet done so, for effective recourse to redress for individuals who have experi- enced discriminatory treatment on the grounds of their belonging or not belonging to a national minority, including by making available to individual victims of discrimination a broad array of administrative and judicial remedies.

(…)

142 OSCE Human Dimension Commitments pa rt II National Minorities

The participating States affirm that persons belonging to a national minority will enjoy the same rights and have the same duties of citizenship as the rest of the population.

(…)

They recognize that …measures, which take into account, inter alia, historical and ter- ritorial circumstances of national minorities, are particularly important in areas where democratic institutions are being consolidated and national minorities issues are of special concern.

Aware of the diversity and varying constitutional systems among them, which make no single approach necessarily generally applicable, the participating States note with interest that positive results have been obtained by some of them in an appropriate democratic manner by, inter alia:

(…)

• bilateral and multilateral agreements and other arrangements regarding national minorities;

(…)

• creation of government research agencies to review legislation and disseminate infor- mation related to equal rights and non-discrimination;

(…)

• governmental assistance for addressing local difficulties relating to discriminatory practices (e.g. a citizens relations service);

• encouragement of grassroots community relations efforts between minority commu- nities, between majority and minority communities, and between neighbouring com- munities sharing borders, aimed at helping to prevent local tensions from arising and address conflicts peacefully should they arise; and

• encouragement of the establishment of permanent mixed commissions, either inter- State or regional, to facilitate continuing dialogue between the border regions con- cerned.

The participating States are of the view that these or other approaches, individually or in combination, could be helpful in improving the situation of national minorities on their territories.

V.

The participating States respect the right of persons belonging to national minorities to exercise and enjoy their rights alone or in community with others, to establish and maintain organizations and associations within their country, and to participate in international non-governmental organizations (…)

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VI.

The participating States, concerned by the proliferation of acts of racial, ethnic and reli- gious hatred, anti-semitism, xenophobia and discrimination, stress their determination to condemn, on a continuing basis, such acts against anyone.

In this context, they reaffirm their recognition of the particular problems of Roma (gypsies). They are ready to undertake effective measures in order to achieve full equal- ity of opportunity between persons belonging to Roma ordinarily resident in their State and the rest of the resident population. They will also encourage research and studies regarding Roma and the particular problems they face. They will take effective mea- sures to promote tolerance, understanding, equality of opportunity and good relations between individuals of different origins within their country (…)

Moscow 1991 (37) The participating States confirm the provisions and commitments of all CSCE doc- uments, in particular the Document of the Copenhagen Meeting of the Conference on the Human Dimension of the CSCE, concerning questions relating to national minor- ities and the rights of persons belonging to them, and the Report of the Geneva CSCE Meeting of Experts on National Minorities, and call for their full and early implemen- tation. They believe that, in particular, the use of the new and expanded CSCE mecha- nisms and procedures will contribute to further protection and promotion of the rights of persons belonging to national minorities.

Helsinki 1992 (Decisions: II. CSCE High Commissioner on National Minorities) (1) The participating States decide to establish a High Commissioner on National Minorities (…)

Helsinki 1992 (Decisions: VI. The Human Dimension) The participating States

(23) Reaffirm in the strongest terms their determination to implement in a prompt and faithful manner all their CSCE commitments (…) regarding questions relating to national minorities and rights of persons belonging to them;

(24) Will intensify in this context their efforts to ensure the free exercise by persons belonging to national minorities, individually or in community with others, of their human rights and fundamental freedoms, including the right to participate fully, in accordance with the democratic decision-making procedures of each State, in the polit- ical, economic, social and cultural life of their countries (…)

(25) Will continue through unilateral, bilateral and multilateral efforts to explore fur- ther avenues for more effective implementation of their relevant CSCE commitments, including those related to the protection and the creation of conditions for the promo- tion of the ethnic, cultural, linguistic and religious identity of national minorities;

144 OSCE Human Dimension Commitments pa rt II National Minorities

(26) Will address national minority issues in a constructive manner, by peaceful means and through dialogue among all parties concerned on the basis of CSCE principles and commitments;

(27) Will refrain from resettling and condemn all attempts, by the threat or use of force, to resettle persons with the aim of changing the ethnic composition of areas within their territories (…)

Budapest 1994 (Decisions: VIII. The Human Dimension) 21. The participating States confirm their determination consistently to advance the implementation of the provisions of the Final Act and all other CSCE documents relat- ing to the protection of the rights of persons belonging to national minorities. They commend the work of the HCNM in this field.

22. The participating States welcome the international efforts to improve protection of the rights of persons belonging to national minorities. They take note of the adop- tion, within the Council of Europe, of a Framework Convention on the Protection of National Minorities, which builds upon CSCE standards in this context. They stressed that the Convention is also open — by invitation — to signature by States which are not members of the Council of Europe and they may consider examining the possibility of becoming parties to this Convention.

Lisbon 1996 (Declaration on a Common and Comprehensive Security Model for Europe for the Twenty-First Century) (10) (…)

- As an important contribution to security we reaffirm our determination to fully respect and implement all our commitments relating to the rights of persons belonging to national minorities. We reaffirm our will to co-operate fully with the High Commis- sioner on National Minorities. We are ready to respond to a request by any participating State seeking solutions to minority issues on its territory.

Istanbul 1999 (Summit Declaration) 30. We reaffirm our commitment to ensure that laws and policies fully respect the rights of persons belonging to national minorities (…) We also support the adoption and full implementation of comprehensive anti-discrimination legislation to promote full equality of opportunities for all (…) We reaffirm that we will increase our efforts to implement the recommendations of the High Commissioner on National Minorities.

Istanbul 1999 (Charter for European Security: III. Our Common Response) The protection and promotion of the rights of persons belonging to national minori- ties are essential factors for democracy, peace, justice and stability within, and between, participating States (…) Full respect for human rights, including the rights of persons belonging to national minorities, besides being an end in itself, may not undermine, but strengthen territorial integrity and sovereignty (…) We condemn violence against any

OSCE Human Dimension Commitments 145 Human Rights with a Focus on Specific Groups pa rt II

minority. We pledge to take measures to promote tolerance and to build pluralistic soci- eties where all, regardless of their ethnic origin, enjoy full equality of opportunity (…)

4.1.2 Effective Participation in Public and Political Life Copenhagen 1990 (35) The participating States will respect the right of persons belonging to national minorities to effective participation in public affairs, including participation in the affairs relating to the protection and promotion of the identity of such minorities.

The participating States note the efforts undertaken to protect and create conditions for the promotion of the ethnic, cultural, linguistic and religious identity of certain national minorities by establishing, as one of the possible means to achieve these aims, appropriate local or autonomous administrations corresponding to the specific histori- cal and territorial circumstances of such minorities and in accordance with the policies of the State concerned.

Geneva 1991 III.

Respecting the right of persons belonging to national minorities to effective partici- pation in public affairs, the participating States consider that when issues relating to the situation of national minorities are discussed within their countries, they them- selves should have the effective opportunity to be involved, in accordance with the deci- sion-making procedures of each State. They further consider that appropriate demo- cratic participation of persons belonging to national minorities or their representatives in decision-making or consultative bodies constitutes an important element of effective participation in public affairs.

They consider that special efforts must be made to resolve specific problems in a con- structive manner and through dialogue by means of negotiations and consultations with a view to improving the situation of persons belonging to national minorities. They recognize that the promotion of dialogue between States, and between States and per- sons belonging to national minorities, will be most successful when there is a free flow of information and ideas between all parties (…)

IV.

The participating States will create conditions for persons belonging to national minor- ities to have equal opportunity to be effectively involved in the public life, economic activities, and building of their societies.

(…)

Aware of the diversity and varying constitutional systems among them, which make no single approach necessarily generally applicable, the participating States note with

146 OSCE Human Dimension Commitments pa rt II National Minorities

interest that positive results have been obtained by some of them in an appropriate democratic manner by, inter alia:

• advisory and decision-making bodies in which minorities are represented, in particu- lar with regard to education, culture and religion;

• elected bodies and assemblies of national minority affairs;

• local and autonomous administration, as well as autonomy on a territorial basis, including the existence of consultative, legislative and executive bodies chosen through free and periodic elections;

• self-administration by a national minority of aspects concerning its identity in situa- tions where autonomy on a territorial basis does not apply;

• decentralized or local forms of government;

(…)

The participating States are of the view that these or other approaches, individually or in combination, could be helpful in improving the situation of national minorities on their territories.

Helsinki 1992 (Decisions: VI. The Human Dimension) The participating States

(…)

(24) Will intensify in this context their efforts to ensure the free exercise by persons belonging to national minorities, individually or in community with others, of their human rights and fundamental freedoms, including the right to participate fully, in accordance with the democratic decision-making procedures of each State, in the polit- ical, economic, social and cultural life of their countries including through democratic participation in decision-making and consultative bodies at the national, regional and local level, inter alia, through political parties and associations (…)

Maastricht 2003 (Decisions: Decision No. 4/03 on Tolerance and Non-discrimination) The Ministerial Council,

(…)

10. Ensures the advancement of the implementation of the OSCE commitments on national minorities, and recognizes the importance of the recommendations of the High Commissioner on National Minorities on (…) public participation (…)

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4.1.3 Cultural, Linguistic, and Religious Identity, and Education Helsinki 1975 (Co-operation in Humanitarian and Other Fields) (…) The participating States, recognizing the contribution that national minorities or regional cultures can make to co-operation among them in various fields of culture/ education, intend, when such minorities or cultures exist within their territory, to facil- itate this contribution, taking into account the legitimate interests of their members.

Vienna 1989 (Questions Relating to Security in Europe: Principles) (19) [The participating States] will protect and create conditions for the promotion of the ethnic, cultural, linguistic and religious identity of national minorities on their ter- ritory.

(…)

Vienna 1989 (Co-operation in Humanitarian and Other Fields) (45) [The participating States] will ensure in practice that persons belonging to national minorities or regional cultures on their territories can disseminate, have access to, and exchange information in their mother tongue.

(…)

(59) [The participating States] will ensure that persons belonging to national minori- ties or regional cultures on their territories can maintain and develop their own culture in all its aspects, including language, literature and religion; and that they can preserve their cultural and historical monuments and objects.

(…)

(68) [The participating States] will ensure that persons belonging to national minorities or regional cultures on their territories can give and receive instruction on their own culture, including instruction through parental transmission of language, religion and cultural identity to their children.

Copenhagen 1990 (32) (…) Persons belonging to national minorities have the right freely to express, pre- serve and develop their ethnic, cultural, linguistic or religious identity and to maintain and develop their culture in all its aspects, free of any attempts at assimilation against their will. In particular, they have the right

(32.1) - to use freely their mother tongue in private as well as in public;

(32.2) - to establish and maintain their own educational, cultural and religious institu- tions, organizations or associations, which can seek voluntary financial and other con- tributions as well as public assistance, in conformity with national legislation;

148 OSCE Human Dimension Commitments pa rt II National Minorities

(…)

(32.3) - to profess and practise their religion, including the acquisition, possession and use of religious materials, and to conduct religious educational activities in their mother tongue;

(…)

(33) The participating States will protect the ethnic, cultural, linguistic and religious identity of national minorities on their territory and create conditions for the promo- tion of that identity. They will take the necessary measures to that effect after due con- sultations, including contacts with organizations or associations of such minorities, in accordance with the decision-making procedures of each State.

Any such measures will be in conformity with the principles of equality and non-dis- crimination with respect to the other citizens of the participating State concerned.

(34) The participating States will endeavour to ensure that persons belonging to national minorities, notwithstanding the need to learn the official language or languages of the State concerned, have adequate opportunities for instruction of their mother tongue or in their mother tongue, as well as, wherever possible and necessary, for its use before public authorities, in conformity with applicable national legislation.

In the context of the teaching of history and culture in educational establishments, they will also take account of the history and culture of national minorities.

(35) The participating States will respect the right of persons belonging to national minorities to effective participation in public affairs, including participation in the affairs relating to the protection and promotion of the identity of such minorities.

The participating States note the efforts undertaken to protect and create conditions for the promotion of the ethnic, cultural, linguistic and religious identity of certain national minorities by establishing, as one of the possible means to achieve these aims, appropriate local or autonomous administrations corresponding to the specific histori- cal and territorial circumstances of such minorities and in accordance with the policies of the State concerned.

Paris 1990 (A New Era of Democracy, Peace and Unity) We affirm that the ethnic, cultural, linguistic and religious identity of national minori- ties will be protected and that persons belonging to national minorities have the right freely to express, preserve and develop that identity without any discrimination and in full equality before the law.

(…)

Determined to foster the rich contribution of national minorities to the life of our soci- eties, we undertake further to improve their situation. We reaffirm our deep conviction

OSCE Human Dimension Commitments 149 Human Rights with a Focus on Specific Groups pa rt II

that friendly relations among our peoples, as well as peace, justice, stability and democ- racy, require that the ethnic, cultural, linguistic and religious identity of national minor- ities be protected and conditions for the promotion of that identity be created (…)

Geneva 1991 (IV) The participating States are convinced that the preservation of the values and of the cul- tural heritage of national minorities requires the involvement of persons belonging to such minorities and that tolerance and respect for different cultures are of paramount importance in this regard. Accordingly, they confirm the importance of refraining from hindering the production of cultural materials concerning national minorities, includ- ing by persons belonging to them.

Aware of the diversity and varying constitutional systems among them, which make no single approach necessarily generally applicable, the participating States note with interest that positive results have been obtained by some of them in an appropriate democratic manner by, inter alia:

• advisory and decision-making bodies in which minorities are represented, in particu- lar with regard to education, culture and religion;

(…)

• self-administration by a national minority of aspects concerning its identity in situa- tions where autonomy on a territorial basis does not apply;

(…)

• for persons belonging to national minorities, provision of adequate types and levels of education in their mother tongue with due regard to the number, geographic settle- ment patterns and cultural traditions of national minorities;

• funding the teaching of minority languages to the general public, as well as the inclu- sion of minority languages in teacher-training institutions, in particular in regions inhabited by persons belonging to national minorities;

• in cases where instruction in a particular subject is not provided in their territory in the minority language at all levels, taking the necessary measures to find means of recognizing diplomas issued abroad for a course of study completed in that language;

(…)

• provision of financial and technical assistance to persons belonging to national minor- ities who so wish to exercise their right to establish and maintain their own educa- tional, cultural and religious institutions, organizations and associations;

(…)

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The participating States are of the view that these or other approaches, individually or in combination, could be helpful in improving the situation of national minorities on their territories.

Helsinki 1992 (Decisions: VI. The Human Dimension) The participating States

(…)

(25) Will continue through unilateral, bilateral and multilateral efforts to explore fur- ther avenues for more effective implementation of their relevant CSCE commitments, including those related to the protection and the creation of conditions for the promo- tion of the ethnic, cultural, linguistic and religious identity of national minorities (…)

Istanbul 1999 (Summit Declaration) 30. We reaffirm our commitment to ensure that laws and policies fully respect the rights of persons belonging to national minorities, in particular in relation to issues affect- ing cultural identity. Specifically, we emphasize the requirement that laws and policies regarding the educational, linguistic and participatory rights of persons belonging to national minorities conform to applicable international standards and conventions (…)

Istanbul 1999 (Charter for European Security: III. Our Common Response) 19. (…) Various concepts of autonomy as well as other approaches …which are in line with OSCE principles, constitute ways to preserve and promote the ethnic, cultural, linguistic and religious identity of national minorities within an existing State (…)

Maastricht 2003 (Decisions: Decision No. 4/03 on Tolerance and Non-discrimination) The Ministerial Council,

10. Ensures the advancement of the implementation of the OSCE commitments on national minorities, and recognizes the importance of the recommendations of the High Commissioner on National Minorities on education (…) and language, including on its use in broadcast media, and the relevant recommendations of the Representative on Freedom of the Media in this regard;

4.1.4 Human Contacts, Free Media and Information Vienna 1989 (Co-operation in Humanitarian and Other Fields) (31) [The participating States] will ensure that the status of persons belonging to national minorities or regional cultures on their territories is equal to that of other citizens with regard to human contacts under the Final Act and the other aforementioned CSCE doc- uments and that these persons can establish and maintain such contacts through travel and other means of communication, including contacts with citizens of other States with whom they share a common national origin or cultural heritage.

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(…)

(45) [The participating States] will ensure in practice that persons belonging to national minorities or regional cultures on their territories can disseminate, have access to, and exchange information in their mother tongue.

Copenhagen 1990 (32) (…) Persons belonging to a national minority (…) have the right

(…)

(32.4) - to establish and maintain unimpeded contacts among themselves within their country as well as contacts across frontiers with citizens of other States with whom they share a common ethnic or national origin, cultural heritage or religious beliefs;

(...)

Geneva 1991 IV.

Aware of the diversity and varying constitutional systems among them, which make no single approach necessarily generally applicable, the participating States note with interest that positive results have been obtained by some of them in an appropriate democratic manner by, inter alia:

(…)

• encouragement of grassroots community relations efforts between minority commu- nities, between majority and minority communities, and between neighbouring com- munities sharing borders, aimed at helping to prevent local tensions from arising and address conflicts peacefully should they arise; and

• encouragement of the establishment of permanent mixed commissions, either inter- State or regional, to facilitate continuing dialogue between the border regions con- cerned.

The participating States are of the view that these or other approaches, individually or in combination, could be helpful in improving the situation of national minorities on their territories.

(…)

VII.

Convinced that the protection of the rights of persons belonging to national minori- ties necessitates free flow of information and exchange of ideas, the participating States emphasize the importance of communication between persons belonging to national minorities without interference by public authorities and regardless of frontiers. The

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exercise of such rights may be subject only to such restrictions as are prescribed by law and are consistent with international standards. They reaffirm that no one belonging to a national minority, simply by virtue of belonging to such a minority, will be subject to penal or administrative sanctions for having had contacts within or outside his/her own country.

In access to the media, they will not discriminate against anyone based on ethnic, cul- tural, linguistic or religious grounds. They will make information available that will assist the electronic mass media in taking into account, in their programmes, the eth- nic, cultural, linguistic and religious identity of national minorities.

They reaffirm that establishment and maintenance of unimpeded contacts among per- sons belonging to a national minority, as well as contacts across frontiers by persons belonging to a national minority with persons with whom they share a common eth- nic or national origin, cultural heritage or religious belief, contributes to mutual under- standing and promotes good-neighbourly relations.

They therefore encourage transfrontier co-operation arrangements on a national, regional and local level, inter alia, on local border crossings, the preservation of and vis- its to cultural and historical monuments and sites, tourism, the improvement of traffic, the economy, youth exchange, the protection of the environment and the establishment of regional commissions.

They will also encourage the creation of informal working arrangements (e.g. work- shops, committees both within and between the participating States) where national minorities live, to discuss issues of, exchange experience on, and present proposals on, issues related to national minorities.

With a view to improving their information about the actual situation of national minorities, the participating States will, on a voluntary basis distribute, through the CSCE Secretariat, information to other participating States about the situation of national minorities in their respective territories, as well as statements of national pol- icy in that respect.

The participating States will deposit with the CSCE Secretariat copies of the contri- butions made in the Plenary of the CSCE Meeting of Experts on National Minorities which they wish to be available to the public.

4.1.5 Role of Organizations and Associations Copenhagen 1990 (30) (…) [The participating States] also recognize the important role of non-govern- mental organizations, including political parties, trade unions, human rights organiza- tions and religious groups, in the promotion of tolerance, cultural diversity and the res- olution of questions relating to national minorities.

(…)

OSCE Human Dimension Commitments 153 Human Rights with a Focus on Specific Groups pa rt II

Persons belonging to national minorities (…) have the right

(32.2) - to establish and maintain their own educational, cultural and religious institu- tions, organizations or associations, which can seek voluntary financial and other con- tributions as well as public assistance, in conformity with national legislation;

(…)

(32.6) - to establish and maintain organizations or associations within their country and to participate in international non-governmental organizations.

Geneva 1991 IV.

Aware of the diversity and varying constitutional systems among them, which make no single approach necessarily generally applicable, the participating States note with interest that positive results have been obtained by some of them in an appropriate democratic manner by, inter alia:

(…)

• provision of financial and technical assistance to persons belonging to national minor- ities who so wish to exercise their right to establish and maintain their own educa- tional, cultural and religious institutions, organizations and associations; (…)

The participating States are of the view that these or other approaches (…) could be helpful in improving the situation of national minorities on their territories.

V.

The participating States respect the right of persons belonging to national minorities to exercise and enjoy their rights alone or in community with others, to establish and maintain organizations and associations within their country, and to participate in international non-governmental organizations.

The participating States reaffirm, and will not hinder the exercise of, the right of per- sons belonging to national minorities to establish and maintain their own educational, cultural and religious institutions, organizations and associations.

In this regard, they recognize the major and vital role that individuals, nongovernmen- tal organizations, and religious and other groups play in fostering crosscultural under- standing and improving relations at all levels of society, as well as across international frontiers.

They believe that the first-hand observations and experience of such organizations, groups, and individuals can be of great value in promoting the implementation of CSCE commitments relating to persons belonging to national minorities. They therefore will

154 OSCE Human Dimension Commitments pa rt II Roma and Sinti

encourage and not hinder the work of such organizations, groups and individuals and welcome their contributions in this area.

4.1.6 Protection Against Hate-Related Crime Geneva 1991 The participating States, concerned by the proliferation of acts of racial, ethnic and reli- gious hatred, anti-semitism, xenophobia and discrimination, stress their determination to condemn, on a continuing basis, such acts against anyone. In this context, they reaf- firm their recognition of the particular problems of Roma (gypsies) (…)

Further, the participating States will take effective measures, including the adoption, in conformity with their constitutional law and their international obligations, if they have not already done so, of laws that would prohibit acts that constitute incitement to vio- lence based on national, racial, ethnic or religious discrimination, hostility or hatred, including anti-semitism, and policies to enforce such laws.

Moreover, in order to heighten public awareness of prejudice and hatred, to improve enforcement of laws against hate-related crime and otherwise to further efforts to address hatred and prejudice in society, they will make efforts to collect, publish on a regular basis, and make available to the public, data about crimes on their respective territories that are based on prejudice as to race, ethnic identity or religion, including the guidelines used for the collection of such data. These data should not contain any personal information.

They will consult and exchange views and information at the international level, includ- ing at future meetings of the CSCE, on crimes that manifest evidence of prejudice and hate.

4.2 Roma and Sinti

See also: á Part I. 2.3.4 A: The Office for Democratic Institutions and Human Rights (ODIHR) á Part I. 2.3.4 A. III: ODIHR Contact Point for Roma and Sinti Issues á Part II. 5: Commitments Related to Equality, Tolerance, and Non-discrimination

4.2.1 Protection of Human Rights and Fundamental Freedoms, Including Equality of Opportunity and Non-discrimination Geneva 1991 (VI) [The participating States] are ready to undertake effective measures in order to achieve full equality of opportunity between persons belonging to Roma ordinarily resident in their State and the rest of the resident population. They will also encourage research and studies regarding Roma and the particular problems they face.

OSCE Human Dimension Commitments 155 Human Rights with a Focus on Specific Groups pa rt II

Budapest 1994 (Decisions: VIII. The Human Dimension) 23. The participating States decide to appoint within the ODIHR a contact point for Roma and Sinti (Gypsies) issues (…)

24. The participating States welcome the activities related to Roma and Sinti (Gypsies) issues in other international organizations and institutions, in particular those under- taken in the Council of Europe.

Istanbul 1999 (Summit Declaration) 31. (…) We commit ourselves to ensure that laws and policies fully respect the rights of Roma and Sinti and, where necessary, to promote anti-discrimination legislation to this effect (…)

Istanbul 1999 (Charter for European Security: III. Our Common Response) 20. We recognize the particular difficulties faced by Roma and Sinti and the need to undertake effective measures in order to achieve full equality of opportunity, consis- tent with OSCE commitments, for persons belonging to Roma and Sinti. We will rein- force our efforts to ensure that Roma and Sinti are able to play a full and equal part in our societies, and to eradicate discrimination against them.

Maastricht 2003 (Decisions: Decision No. 3/03 on the Action Plan on Improving the Situation of Roma and Sinti within the OSCE Area) The Ministerial Council,

(…)

Recognizing the particular difficulties faced by Roma and Sinti people and the need to undertake effective measures in order to eradicate discrimination against them and to bring about equality of opportunities, consistent with OSCE commitments,

Recognizing that progress has been achieved in national legislation and in programmes for action and that substantial efforts have been undertaken by the participating States to this end,

Aware at the same time that resolute action is still required to improve the situation of the Roma and Sinti population across the OSCE region,

(…)

Convinced that Roma and Sinti populations should have an ever-increasing degree of ownership of the policies focusing on them,

Decides to endorse the Action Plan on Improving the Situation of Roma and Sinti within the OSCE Area, adopted by the Permanent Council in its Decision No. 566 on 27 November 2003, and annexed to this Decision.

156 OSCE Human Dimension Commitments pa rt II Roma and Sinti

Maastricht 2003 (Decisions: Annex to Decision No. 3/03: Action Plan on Improving the Situation of Roma and Sinti within the OSCE Area) II. General context: for Roma, with Roma

4. Each national policy or implementation strategy should: (1) respond to the real prob- lems, needs and priorities of Roma and Sinti communities; (2) be comprehensive; (3) introduce a balanced and sustainable approach to combining human rights goals with social policies; and (4) maximize Roma ownership of the policies that affect them. (…) Implementation strategies should also include mechanisms to ensure that national poli- cies are implemented at the local level.

5. The guiding principle in the efforts of participating States and relevant OSCE institu- tions should be that each policy and implementation strategy should be elaborated and implemented with the active participation of Roma and Sinti communities. Roma and Sinti people should work alongside local, national and international authorities in the development of these strategies. Equally, Roma communities should be equal partners and should share the responsibility for the betterment of their welfare.

6. The particular situation of Roma and Sinti women should be taken into account in the design and implementation of all policies and programmes. Where consultative and other mechanisms exist to facilitate Roma and Sinti people’s participation in such pol- icy-making processes, women should be able to participate on an equal basis with men. Roma women’s issues should be systematically mainstreamed in all relevant policies designed for the population as a whole.

III. Combating racism and discrimination

Legislation and law enforcement

Recommended action by participating States:

(…)

8. Adopt and implement effective anti-discrimination legislation to combat racial and ethnic discrimination in all fields, including, inter alia, access to housing, citizenship and residence, education, employment, health and social services. Involve Roma and Sinti representatives in the design, implementation and evaluation processes.

9. The anti-discrimination legislation should ensure:

• Prohibition of both direct and indirect racial discrimination;

• Imposition of effective, proportionate and dissuasive sanctions for discriminatory acts or practices;

(…)

OSCE Human Dimension Commitments 157 Human Rights with a Focus on Specific Groups pa rt II

• Equal access to effective remedies (judicial, administrative, conciliation or mediation procedures).

10. It should be ensured that national legislation prohibits all kinds of discriminatory acts and that all cases of suspected discrimination are thoroughly and objectively inves- tigated.

11. Create, where appropriate, specialized institutions to ensure the implementation of such legislation, as well as domestic mechanisms to monitor and report regularly and with transparency on the progress achieved in its implementation. Encourage partici- pation of Roma and Sinti representatives in such bodies, whose work should be accessi- ble to the public.

12. Develop, where necessary, comprehensive national strategies or action plans to improve the situation of Roma and Sinti people, which include specific measures to tackle discrimination in all fields of life.

13. Assess on a regular basis, especially at the local level, the results of these strategies and involve Roma and Sinti communities in the evaluation process.

(…)

15. Document, consistent with national and international standards on the protection of data, all types and relevant cases of discrimination in order to better assess the situa- tion and respond to the needs of Roma and Sinti people.

(…)

17. Ensure no impunity for perpetrators of discriminatory …acts, inter alia, by taking prompt and effective investigative and punitive action on the part of the police.

18. Facilitate access to justice for Roma and Sinti people through measures such as legal aid and the provision of information in the Romani language.

19. Take into account in all measures and programmes, the situation of Roma and Sinti women, who are often victims of discrimination on the basis of both ethnicity and sex.

(…)

Mass Media

Recommended action by participating States:

37. In order to foster freedom of expression, encourage training of Roma and Sinti jour- nalists and their employment in media outlets with a view to facilitating wider access to the media for Roma and Sinti people.

IX. The ODIHR Contact Point for Roma and Sinti Issues

158 OSCE Human Dimension Commitments pa rt II Roma and Sinti

(…)

136. With a view to facilitating the implementation review process, OSCE participating States are encouraged to provide information on recent developments in the situation of Roma and Sinti people and/or measures inspired by this Action Plan at the Human Dimension Implementation Meetings, prior to Review Conferences and to the Perma- nent Council, where appropriate.

137. All relevant OSCE institutions and structures, including OSCE field operations, will continue to interact closely with participating States in order to assist them in implementing the Action Plan.

4.2.2 Effective Participation in Public and Political Life Helsinki 1992 (Decisions: VI. The Human Dimension) [The participating States]

(35) Reaffirm (…) the need to develop appropriate programmes addressing problems of their respective nationals belonging to Roma and other groups traditionally identified as Gypsies and to create conditions for them to have equal opportunities to participate fully in the life of society, and will consider how to co-operate to this end.

Maastricht 2003 (Decisions: Annex to Decision No. 3/03: Action Plan on Improving the Situation of Roma and Sinti within the OSCE Area) VI. Enhancing participation in public and political life

Recommended action by participating States:

87. Participating States must be proactive in ensuring that Roma and Sinti people, like any other inhabitants, have all the necessary documents, including birth certificates, identity documents and health insurance certificates. In resolving problems related to the lack of basic documents, participating States are strongly advised to work in part- nership with Roma and Sinti civil organizations.

88. Participating States are encouraged to take into account the following basic condi- tions for ensuring effective participation by Roma and Sinti people in public and politi- cal life:

• Early involvement:

Any initiative relating to Roma and Sinti people should involve them at the earliest stages in the development, implementation and evaluation phases;

• Inclusiveness:

Roma and Sinti people should be included in formal consultative processes, and the effectiveness of mechanisms established for their participation in shaping major policy initiatives should be ensured by involving them in a broadly representative process;

OSCE Human Dimension Commitments 159 Human Rights with a Focus on Specific Groups pa rt II

• Transparency:

Programmes and proposals should be circulated sufficiently in advance of decision- making deadlines to allow for meaningful analysis and input from representatives of Roma and Sinti communities;

• Meaningful participation by Roma and Sinti people at all levels of government:

Participation by Roma and Sinti people in local government is essential for the effective implementation of policies affecting them;

• Ownership:

Roma and Sinti people play an essential and irreplaceable role in ensuring that the right to participate in the political process is observed in practice.

89. Elected officials should establish close working relations with Roma and Sinti com- munities.

90. Establish mechanisms to ensure equal, direct and open communication between Roma and Sinti representatives and government authorities, including advisory and consultative bodies.

91. Facilitate interaction between political leaders at the local and national levels and diverse Roma groups.

92. Organize election-awareness campaigns so as to increase participation of the Roma electorate in elections.

93. Ensure that Roma voters can make free and informed choices in elections.

94. Take measures to guarantee the equal voting rights of women, including by enforc- ing prohibitions on so-called “family voting”.

95. Encourage Roma and Sinti people to engage more actively in public service, includ- ing, where necessary, through the introduction of special measures to promote their participation in the civil service.

96. Encourage the representation of Roma and Sinti people in elected and appointed office at all levels of government.

97. Empower and integrate Roma and Sinti individuals into decision-making processes of States and localities as elected representatives of their communities and as citizens of their respective countries.

98. Promote Roma women’s participation in public and political life; Roma women should be able to participate on an equal basis with men in consultative and other mechanisms designed to increase access to all areas of public and political life.

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4.2.3 Access to Education Maastricht 2003 (Decisions: Annex to Decision No. 3/03: Action Plan on Improving the Situation of Roma and Sinti within the OSCE Area) V. Improving access to education

Education is a prerequisite to the participation of Roma and Sinti people in the politi- cal, social and economic life of their respective countries on a footing of equality with others. Strong immediate measures in this field, particularly those that foster school attendance and combat illiteracy, should be assigned the highest priority both by deci- sion-makers and by Roma and Sinti communities. Educational policies should aim to integrate Roma and Sinti people into mainstream education by providing full and equal access at all levels, while remaining sensitive to cultural differences.

Recommended action by participating States:

67. Ensure that national legislation includes adequate provisions banning racial segre- gation and discrimination in education and provides effective remedies for violations of such legislation.

68. Consult Roma and Sinti representatives when designing educational policies affect- ing them.

69. Actively promote equal opportunities in the field of education for Roma and Sinti children, particularly by providing them with language-related or other assistance.

70. Take special measures to enhance the quality and effectiveness of education for Roma and Sinti children. Encourage increased representation of Roma and Sinti people among school teachers.

71. Include Roma history and culture in educational texts, with particular consideration given to the experience of Roma and Sinti people during the Holocaust.

72. Consider measures to ensure the respect, protection and promotion of the Romani language and its teaching, and of Roma culture as an integral part of the Roma and Sinti cultural heritage.

73. Develop and implement comprehensive school desegregation programmes aim- ing at: (1) discontinuing the practice of systematically routing Roma children to special schools or classes (e.g., schools for mentally disabled persons, schools and classes exclu- sively designed for Roma and Sinti children); and (2) transferring Roma children from special schools to mainstream schools.

74. Allocate financial resources for the transfer of the Roma children to mainstream education and for the development of school support programmes to ease the transition to mainstream education.

OSCE Human Dimension Commitments 161 Human Rights with a Focus on Specific Groups pa rt II

75. Facilitate Roma children’s access to mainstream education by taking measures such as:

(a) Taking measures to eradicate manifestations of prejudice against Roma and Sinti people in schools;

(b) Training of educators regarding multicultural education and ways of dealing with ethnically mixed classes;

(c) Developing strategies to gain wider community support for the desegregation of schools;

(d) Providing support to bridge the gap between Roma and Sinti children and other pupils, including through pre-school programmes designed to prepare Roma and Sinti children for primary school;

(e) Providing support to increase the number of mediators/trainers and teachers from within the Roma communities.

76. Develop and implement anti-racist curricula for schools, and anti-racism campaigns for the media.

77. Develop policies that address the full range of factors which contribute to low- school attendance by Roma and Sinti children. This includes, inter alia, ensuring that Roma and Sinti families have the necessary documentation for registration as any other inhabitants.

78. Consider elaborating social support programmes for low-income Roma families with school-aged children.

79. Promote regular school attendance by Roma and Sinti children, inter alia, through the involvement of family and social mediators, the promotion of awareness by Roma and Sinti parents and elders of their responsibility to facilitate children’s school attend- ance and, in particular, equal access to education for girls.

80. Pay special attention to providing Roma and Sinti girls with equal opportunities for educational and social inclusion and develop programmes to counter their particularly high drop-out rate.

81. Consider developing appropriate programmes for those who have not completed primary school or are illiterate.

82. Develop, where necessary, scholarship programmes for Roma students and encour- age their increased participation in existing scholarship programmes.

83. Encourage computer literacy among Roma and Sinti people through the setting up of information web-sites.

162 OSCE Human Dimension Commitments pa rt II Roma and Sinti

84. Evaluate periodically the effectiveness of educational policies.

4.2.4 Socio-economic Issues Istanbul 1999 (Summit Declaration) 31. (…) We underline the importance of careful attention to the problems of the social exclusion of Roma and Sinti. These issues are primarily a responsibility of the partici- pating States concerned.

Maastricht 2003 (Decisions: Annex to Decision No. 3/03: Action Plan on Improving the Situation of Roma and Sinti within the OSCE Area) Housing and living conditions

Recommended action by participating States:

43. Put in place mechanisms and institutional procedures to clarify property rights, resolve questions of ownership and regularize the legal status of Roma and Sinti people living in circumstances of unsettled legality (e.g., Roma neighbourhoods lacking land rights or which are not included in the urban plans of the main locality; families and houses without legal residence status in settlements where the people have been living de facto for decades).

44. Involve Roma and Sinti people in the design of housing policies, as well as in the construction, rehabilitation and/or maintenance of public housing projects meant to benefit them. Ensure that housing projects do not foster ethnic and/or racial segrega- tion.

45. Consider the possibility of guaranteeing loans to participating States that may be available from international organizations and financial institutions for low-income housing projects.

46. Promote the option of co-operative housing schemes for Roma communities and provide appropriate training for the maintenance of such facilities.

Unemployment and economic problems

Recommended action by participating States:

48. Promote increased representation of qualified Roma and Sinti people in public employment.

49. Develop training programmes to prepare under-represented groups such as Roma and Sinti for employment in local public administration and other areas, and develop policies to encourage employment of the graduates of these programmes as civil serv- ants.

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50. Reassess the impact of subsidized employment programmes, paying particular attention to their educational components, to ensure that these will aim to increase the competitiveness of Roma and Sinti people on the labour market.

51. Develop policies and programmes, including vocational training, to improve the marketable skills and employability of Roma and Sinti people, particularly young peo- ple and women.

52. Adopt social policies that strengthen incentives to seek employment, as a sustaina- ble way to avoid dependency on social benefits.

Health care

Recommended action by participating States:

58. Ensure that Roma and Sinti people have access to health care services on a non-dis- criminatory basis.

59. Promote awareness about the specific needs of the Roma and Sinti population amongst health care personnel.

60. Address the high incidence of disease and malnutrition among Roma communities.

61. Encourage access by Roma and Sinti populations to general public health services at an early stage by:

(a) Informing Roma and Sinti people about the availability of such services and telling them how to take advantage of them;

(b) Strengthening the confidence of Roma and Sinti people towards public health care providers, including through: punishing incidents of direct or indirect discrimination experienced by Roma and Sinti; training health care workers to understand relevant aspects of Roma culture; and supporting mediators who can play an important role in bridging the gap between Roma communities and public health care service providers.

62. Pay special attention to the health of women and girls, inter alia, by:

(a) Promoting and/or developing programmes aimed at providing information on health care (including nutrition, neonatal care and domestic violence, etc.);

(b) Improving access to gynaecological health care, including prenatal, delivery and postnatal health care services, inter alia, through the provision of information and training.

63. Pay special attention to the health of Roma and Sinti children through the provision of appropriate paediatric care, including preventive measures such as offering vaccina- tions in Roma settlements.

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4.2.5 Racism and Discrimination A. Combating Racism and Stereotypes Copenhagen 1990 (40) The participating States clearly and unequivocally condemn totalitarianism, racial and ethnic hatred, anti-semitism, xenophobia and discrimination against anyone as well as persecution on religious and ideological grounds. In this context, they also rec- ognize the particular problems of Roma (gypsies).

Geneva 1991 (VI) The participating States, concerned by the proliferation of acts of racial, ethnic and reli- gious hatred, anti-semitism, xenophobia and discrimination, stress their determination to condemn, on a continuing basis, such acts against anyone.

In this context, they reaffirm their recognition of the particular problems of Roma (gypsies). They are ready to undertake effective measures in order to achieve full equal- ity of opportunity between persons belonging to Roma ordinarily resident in their State and the rest of the resident population. They will also encourage research and studies regarding Roma and the particular problems they face.

Istanbul 1999 (Summit Declaration) 31. We deplore violence and other manifestations of racism and discrimination against minorities, including the Roma and Sinti (…)

Maastricht 2003 (Decisions: Annex to Decision No. 3/03: Action Plan on Improving the Situation of Roma and Sinti within the OSCE Area) Legislation and law enforcement

Recommended action by participating States:

7. Consider ratifying the relevant international treaties as soon as possible, if they have not already done so, inter alia, the International Convention on the Elimination of All Forms of Racial Discrimination.

(…)

14. Endeavour, by encouraging a genuine dialogue or consultations or through other appropriate means, to improve the relations between Roma and Sinti people and other inhabitants, with a view to promoting tolerance and overcoming prejudices and nega- tive stereotypes on both sides.

(…)

Police

Recommended action by participating States:

OSCE Human Dimension Commitments 165 Human Rights with a Focus on Specific Groups pa rt II

26. Develop policies that promote awareness among law-enforcement institutions regarding the situation of Roma and Sinti people and that counter prejudice and nega- tive stereotypes.

27. Develop training programmes to prevent excessive use of force and to promote awareness of and respect for human rights.

28. Develop policies: (1) to improve relations between Roma and Sinti communities and the police, so as to prevent police abuse and violence against Roma and Sinti people; and (2) to improve trust and confidence in the police among Roma and Sinti people.

(…)

30. Assess the gap between international standards on police and currently existing national practices in consultation with national police forces, NGOs and representa- tives of Roma and Sinti communities.

31. Elaborate, where appropriate, and in close partnership with international organiza- tions and Roma NGOs, policy statements, codes of conduct, practical guidance manu- als and training programmes.

32. Encourage Roma and Sinti people to work in law-enforcement institutions as a sus- tainable means of promoting tolerance and diversity.

Mass Media

Recommended action by participating States:

36. Launch information and awareness-raising campaigns with a view to countering prejudices and negative stereotypes of Roma and Sinti people.

(…)

38. Encourage the media to show positive aspects and present a balanced portrayal of Roma life, refrain from stereotyping Roma and Sinti people and avoid inciting tension between various ethnic groups. Organize round tables between media representatives and Roma and Sinti representatives to promote this objective.

B. Protection Against Hate-Related Crimes Maastricht 2003 (Decisions: Annex to Decision No. 3/03: Action Plan on Improving the Situation of Roma and Sinti within the OSCE Area) Legislation and law enforcement

9. (…) anti-discrimination legislation should ensure:

(…)

166 OSCE Human Dimension Commitments pa rt II Roma and Sinti

• Imposition of heavier sentences for racially motivated crimes by both private individu- als and public officials;

• Equal access to effective remedies (judicial, administrative, conciliation or mediation procedures). (…)

11. Create, where appropriate, specialized institutions to ensure the implementation of such legislation, as well as domestic mechanisms to monitor and report regularly and with transparency on the progress achieved in its implementation. Encourage partici- pation of Roma and Sinti representatives in such bodies, whose work should be acces- sible to the public.

(…)

16. Ensure the vigorous and effective investigation of acts of violence against Roma and Sinti people, especially where there are reasonable grounds to suspect that they were racially motivated, and prosecute those responsible in accordance with domestic law and consistent with relevant standards of human rights.

17. Ensure no impunity for perpetrators of … violent acts, inter alia, by taking prompt and effective investigative and punitive action on the part of the police.

18. Facilitate access to justice for Roma and Sinti people through measures such as legal aid and the provision of information in the Romani language.

Police

Recommended action by participating States:

(…)

27. Develop training programmes to prevent excessive use of force and to promote awareness of and respect for human rights.

28. Develop policies: (1) to improve relations between Roma and Sinti communities and the police, so as to prevent police abuse and violence against Roma and Sinti people; and (2) to improve trust and confidence in the police among Roma and Sinti people.

29. Develop policies and procedures to ensure an effective police response to racially motivated violence against Roma and Sinti people.

30. Assess the gap between international standards on police and currently existing national practices in consultation with national police forces, NGOs and representa- tives of Roma and Sinti communities.

31. Elaborate, where appropriate, and in close partnership with international organiza- tions and Roma NGOs, policy statements, codes of conduct, practical guidance manu- als and training programmes.

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4.2.6 Crisis and Post-Crisis Situations Maastricht 2003 (Decisions: Annex to Decision No. 3/03: Action Plan on Improving the Situation of Roma and Sinti within the OSCE Area) VII. Roma and Sinti in crisis and post-crisis situations

(…)

Recommended action by participating States:

107. Consult Roma and Sinti populations when defining crisis situations in order to facilitate adequate procedures and to identify specific geographical areas from which refugees and internally displaced persons flee, as well as to ensure that the specific situ- ation of Roma and Sinti people are addressed.

108. Ensure that Roma and Sinti populations in a forced displacement situation (refu- gees and IDPs) are duly registered and provided with the relevant documents.

109. The participating States should ensure that programmes are in place to promote informed choice regarding the decision of Roma and Sinti refugees and IDPs concern- ing durable solutions to their situations, including the exercise of their right to safe, decent and sustainable return. Such programmes should provide concrete information regarding each subject of concern to refugees and IDPs and should be made available in the relevant languages.

110. Ensure that Roma and Sinti refugees are treated in accordance with the relevant international norms and standards of protection, and in a non-discriminatory manner.

111. Make use of the ODIHR’s role in conflict prevention and identification of areas of early intervention, and draw on the expertise of the OSCE HCNM in this regard.

112. Pay special attention to the needs of Roma and Sinti women and children in cri- sis and post-crisis situations, particularly by providing them with access to health care, housing and schooling.

4.3 Indigenous Populations

Helsinki 1992 (Decisions: VI. The Human Dimension) The participating States

(29) Noting that persons belonging to indigenous populations may have special prob- lems in exercising their rights, agree that their CSCE commitments regarding human rights and fundamental freedoms apply fully and without discrimination to such per- sons.

168 OSCE Human Dimension Commitments pa rt II Refugees, Displaced Persons, Returnees, and Stateless Persons

4.4 Refugees, Displaced Persons, Returnees, and Stateless Persons

See also: á Part II. 3.1.11: Freedom of Movement, Human Contacts, and Family Reunification á Part II. 3.1.13: Right to Nationality á Part II. 4.2: Roma and Sinti á Part II. 7: Commitments Related to International Humanitarian Law

Vienna 1989 (Questions Related to Security in Europe: Principles) (22) [The participating States] (…) will allow all refugees who so desire to return in safety to their homes.

Helsinki 1992 (Summit Declaration) 14. In times of conflict the fulfilment of basic human needs is most at risk (…) We rec- ognize that the refugee problems resulting from these conflicts require the co-opera- tion of all of us. We express our support for and solidarity with those countries which bear the brunt of the refugee problems resulting from these conflicts. In this context we recognize the need for co-operation and concerted action.

Helsinki 1992 (Decisions: VI. The Human Dimension) The participating States

(39) Express their concern over the problem of refugees and displaced persons;

(40) Emphasize the importance of preventing situations that may result in mass flows of refugees and displaced persons and stress the need to identify and address the root causes of displacement and involuntary migration;

(41) Recognize the need for international co-operation in dealing with mass flows of refugees and displaced persons;

(42) Recognize that displacement is often a result of violations of CSCE commitments, including those relating to the Human Dimension;

(43) Reaffirm the importance of existing international standards and instruments related to the protection of and assistance to refugees and will consider acceding to the Convention relating to the Status of Refugees and the Protocol, if they have not already done so;

(44) Recognize the importance of the United Nations High Commissioner for Refu- gees and the International Committee of the Red Cross, as well as of non-governmen- tal organizations involved in relief work, for the protection of and assistance to refugees and displaced persons;

OSCE Human Dimension Commitments 169 Human Rights with a Focus on Specific Groups pa rt II

(45) Welcome and support unilateral, bilateral and multilateral efforts to ensure protec- tion of and assistance to refugees and displaced persons with the aim of finding dura- ble solutions;

Stockholm 1992 (Decisions: 2. The CSCE as a Community of Values) The increasing problem of refugees and displaced persons is an issue of major con- cern to all participating States, particularly in conflicts where the fulfilment of basic human needs is most at risk. The Ministers deplored the plight of civil populations most affected in such conflicts and called on all participating States to contribute to a con- certed effort to share the common burden. All Governments are accountable to each other for their behaviour towards their citizens and towards their neighbours. Individu- als are to be held personally accountable for war crimes and acts in violation of interna- tional humanitarian law.

Budapest 1994 (Decisions: VIII. The Human Dimension) 32. The participating States express their concern at mass migratory movements in the CSCE region, including millions of refugees and displaced persons, due mainly to war, armed conflict, civil strife and grave human rights violations (…) they decide to expand their co-operation with appropriate international bodies in this respect (…)

Lisbon 1996 (Summit Declaration) 9. (…) Among the acute problems within the human dimension, the continuing viola- tions of human rights, such as involuntary migration (…) continue to endanger stability in the OSCE region. We are committed to continuing to address these problems.

10. Against the background of recent refugee tragedies in the OSCE region and tak- ing into account the issue of forced migration, we again condemn and pledge to refrain from any policy of ‘ethnic cleansing’ or mass expulsion. Our States will facilitate the return, in safety and in dignity, of refugees and internally displaced persons, according to international standards. Their reintegration into their places of origin must be pur- sued without discrimination (…)

Istanbul 1999 (Summit Declaration) We are committed to facilitate the right of refugees to participate in elections held in their countries of origin.

Istanbul 1999 (Charter for European Security: III. Our Common Response) 19. (…) We reaffirm our recognition that everyone has the right to a nationality and that no one should be deprived of his or her nationality arbitrarily. We commit ourselves to continue our efforts to ensure that everyone can exercise this right. We also commit ourselves to further the international protection of stateless persons.

(…)

170 OSCE Human Dimension Commitments pa rt II Refugees, Displaced Persons, Returnees, and Stateless Persons

22. We reject any policy of ethnic cleansing or mass expulsion. We reaffirm our com- mitment to respect the right to seek asylum and to ensure the international protection of refugees as set out in the 1951 Convention Relating to the Status of Refugees and its 1967 Protocol, as well as to facilitate the voluntary return of refugees and internally dis- placed persons in dignity and safety. We will pursue without discrimination the reinte- gration of refugees and internally displaced persons in their places of origin. In order to enhance the protection of civilians in times of conflict, we will seek ways of reinforcing the application of international humanitarian law.

Bucharest 2001 (Annex to Decision 1 on Combating Terrorism: The Bucharest Plan of Action for Combating Terrorism) 15. Addressing the issue of protracted displacement: Participating States/ODIHR/ HCNM/Representative on Freedom of the Media: Will explore strengthened OSCE potential for contributing to durable solutions, supporting and closely co-operating with other relevant organizations, primarily the Office of the United Nations High Commis- sioner for Refugees. Will closely monitor situations of protracted displacement.

Maastricht 2003 (Decisions: Decision No. 4/03 on Tolerance and Non-discrimination) The Ministerial Council,

(…)

12. Undertakes, in this context, to combat, subject to national legislation and interna- tional commitments, discrimination, where existing, against asylum seekers and refu- gees, and calls on the ODIHR to reinforce its activities in this respect;

13. Takes into account the UN Guiding Principles on Internal Displacement as a useful framework for the work of the OSCE and the endeavors of participating States in deal- ing with internal displacement;

Sofia 2004 (Decisions: Annex to Decision No. 14/04, 2004 OSCE Action Plan for the Pro- motion of Gender Equality) As recommended in the Guidelines on International Protection on Gender-Related Per- secution within the context of Article 1A (2) of the 1951 Convention relating to the Sta- tus of Refugees and/or its 1967 Protocol relating to the Status of Refugees, introduce procedural practices, if States have not already done so, that ensure that proper con- sideration is given to women claimants in refugee status determination procedures and that the range of claims of gender-related persecution are accorded due recognition;

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4.5 Migrant Workers

See also: á Part II. 3.1.11: Freedom of Movement, Human Contacts, and Family Reunification

Helsinki 1975 (Co-operation in the Field of Economics, of Science and Technology and of the Environment) The participating States,

Considering that the movements of migrant workers in Europe have reached substan- tial proportions, and that they constitute an important economic, social and human factor for host countries as well as for countries of origin,

Recognizing that workers’ migrations have also given rise to a number of economic, social, human and other problems in both the receiving countries and the countries of origin,

Taking due account of the activities of the competent international organizations, more particularly the International Labour Organisation, in this area, are of the opinion that the problems arising bilaterally from the migration of workers in Europe as well as between the participating States should be dealt with by the parties directly concerned, in order to resolve these problems in their mutual interest, in the light of the concern of each State involved to take due account of the requirements resulting from its socio- economic situation, having regard to the obligation of each State to comply with the bilateral and multilateral agreements to which it is party, and with the following aims in view:

• to encourage the efforts of the countries of origin directed towards increasing the pos- sibilities of employment for their nationals in their own territories, in particular by developing economic co-operation appropriate for this purpose and suitable for the host countries and the countries of origin concerned;

• to ensure, through collaboration between the host country and the country of ori- gin, the conditions under which the orderly movement of workers might take place, while at the same time protecting their personal and social welfare and, if appropriate, to organize the recruitment of migrant workers and the provision of elementary lan- guage and vocational training;

• to ensure equality of rights between migrant workers and nationals of the host coun- tries with regard to conditions of employment and work and to social security, and to endeavour to ensure that migrant workers may enjoy satisfactory living conditions, especially housing conditions;

• to endeavour to ensure, as far as possible, that migrant workers may enjoy the same opportunities as nationals of the host countries of finding other suitable employment in the event of unemployment;

172 OSCE Human Dimension Commitments pa rt II Migrant Workers

• to regard with favour the provision of vocational training to migrant workers and, as far as possible, free instruction in the language of the host country, in the framework of their employment;

• to confirm the right of migrant workers to receive, as far as possible, regular information in their own language, covering both their country of origin and the host country;

• to ensure that the children of migrant workers established in the host country have access to the education usually given there, under the same conditions as the children of that country and, furthermore, to permit them to receive supplementary education in their own language, national culture, history and geography;

• to bear in mind that migrant workers, particularly those who have acquired qualifica- tions, can by returning to their countries after a certain period of time help to remedy any deficiency of skilled labour in their country of origin;

• to facilitate, as far as possible, the reuniting of migrant workers with their families;

• to regard with favour the efforts of the countries of origin to attract the savings of migrant workers, with a view to increasing, within the framework of their economic development, appropriate opportunities for employment, thereby facilitating the reintegration of these workers on their return home.

Madrid 1983 (Co-operation in the Field of Economics, of Science and Technology and of the Environment) In the context of the provisions of the Final Act concerning migrant labour in Europe, the participating States note that recent developments in the world economy have affected the situation of migrant workers. In this connection, the participating States express their wish that host countries and countries of origin, guided by a spirit of mutual interest and cooperation, intensify their contacts with a view to improving fur- ther the general situation of migrant workers and their families, inter alia the protec- tion of their human rights including their economic, social and cultural rights while taking particularly into account the special problems of second generation migrants. They will also endeavour to provide or promote, where reasonable demand exists, ade- quate teaching of the language and culture of the countries of origin.

The participating States recommend that, among other measures for facilitating the social and economic reintegration of returning migrant labour, the payment of pen- sions as acquired or established under the social security system to which such work- ers have been admitted in the host country should be ensured by appropriate legislative means or reciprocal agreements.

OSCE Human Dimension Commitments 173 Human Rights with a Focus on Specific Groups pa rt II

Vienna 1989 (Co-operation in the Field of Economics, of Science and Technology and of the Environment) (40) The participating States emphasize the need for effective implementation of the provisions of the Final Act and the Madrid Concluding Document relating to migrant workers and their families in Europe. They invite host countries and countries of origin to make efforts to improve further the economic, social, cultural and other conditions of life for migrant workers and their families legally residing in the host countries. They recommend that host countries and countries of origin should promote their bilateral co-operation in relevant fields with a view to facilitating the reintegration of migrant workers and their families returning to their country of origin.

(41) The participating States will (…) consider favourably applications for family reuni- fication as well as family contacts and visits involving migrant workers from other par- ticipating States legally residing in the host countries.

(42) The participating States will ensure that migrant workers from other participating States, and their families, can freely enjoy and maintain their national culture and have access to the culture of the host country.

(43) Aiming at ensuring effective equality of opportunity between the children of migrant workers and the children of their own nationals regarding access to all forms and levels of education, the participating States affirm their readiness to take measures needed for the better use and improvement of educational opportunities. Furthermore, they will encourage or facilitate, where reasonable demand exists, supplementary teach- ing in their mother tongue for the children of migrant workers.

(44) The participating States recognize that issues of migrant workers have their human dimension.

Copenhagen 1990 (22) The participating States reaffirm that the protection and promotion of the rights of migrant workers have their human dimension. In this context, they

(22.1) - agree that the protection and promotion of the rights of migrant workers are the concern of all participating States and that as such they should be addressed within the CSCE process;

(22.2) - reaffirm their commitment to implement fully in their domestic legislation the rights of migrant workers provided for in international agreements to which they are parties;

(22.3) - consider that, in future international instruments concerning the rights of migrant workers, they should take into account the fact that this issue is of importance for all of them;

174 OSCE Human Dimension Commitments pa rt II Migrant Workers

Paris 1990 (A New Era of Democracy, Peace and Unity) We recognize that the issues of migrant workers and their families legally residing in host countries have economic, cultural and social aspects as well as their human dimension. We reaffirm that the protection and promotion of their rights, as well as the implementation of relevant international obligations, is our common concern.

Moscow 1991 (38) The participating States recognize the need to ensure that the rights of migrant workers and their families lawfully residing in the participating States are respected and underline their right to express freely their ethnic, cultural, religious and linguis- tic characteristics. The exercise of such rights may be subject to such restrictions as are prescribed by law and are consistent with international standards.

(38.1) They condemn all acts of discrimination on the ground of race, colour and ethnic origin, intolerance and xenophobia against migrant workers. They will, in conformity with domestic law and international obligations, take effective measures to promote tol- erance, understanding, equality of opportunity and respect for the fundamental human rights of migrant workers and adopt, if they have not already done so, measures that would prohibit acts that constitute incitement to violence based on national, racial, eth- nic or religious discrimination, hostility or hatred.

(38.2) They will adopt appropriate measures that would enable migrant workers to par- ticipate in the life of the society of the participating States.

(38.3) They note that issues which concern the human dimension of migrant workers residing on their territory could, as any other issue of the human dimension, be raised under the human dimension mechanism.

Helsinki 1992 (Decisions: VI. The Human Dimension) The participating States

(36) Restate that human rights and fundamental freedoms are universal, that they are also enjoyed by migrant workers wherever they live and stress the importance of imple- menting all CSCE commitments on migrant workers and their families lawfully resid- ing in the participating States;

(37) Will encourage the creation of conditions to foster greater harmony in relations between migrant workers and the rest of the society of the participating State in which they lawfully reside. To this end, they will seek to offer, inter alia, measures to facilitate the familiarization of migrant workers and their families with the languages and social life of the respective participating State in which they lawfully reside so as to enable them to participate in the life of the society of the host country;

(38) Will, in accordance with their domestic policies, laws and international obliga- tions seek, as appropriate, to create the conditions for promoting equality of oppor- tunity in respect of working conditions, education, social security and health services,

OSCE Human Dimension Commitments 175 Human Rights with a Focus on Specific Groups pa rt II

housing, access to trade unions as well as cultural rights for lawfully residing and work- ing migrant workers.

Budapest 1994 (Decisions: VIII. The Human Dimension) 29. They decided that appropriate measures should be taken to better prevent racist attacks and other manifestations of violent intolerance against migrant workers and their families.

(…)

31. They will continue to promote the integration of migrant workers in the societies in which they are lawfully residing. They recognize that a successful process of integration also depends on its active pursuit by the migrants themselves and decided therefore to encourage them in this regard.

Maastricht 2003 (Decisions: Decision No. 4/03 on Tolerance and Non-discrimination) The Ministerial Council

(…)

11. Undertakes to combat discrimination against migrant workers (…)

Sofia 2004 (Decisions: Annex to Decision No. 12/04 on Tolerance and Non-discrimi- nation; Permanent Council Decision No. 621: Tolerance and the Fight against Racism, Xenophobia and Discrimination) The participating states commit to:

(…)

• Take steps, in conformity with their domestic law and international obligations, against discrimination, intolerance and xenophobia against migrants and migrant workers;

• Consider undertaking activities to raise public awareness of the enriching contribu- tion of migrants and migrant workers to society;

(…)

4.6 Persons with Disabilities

Moscow 1991 (41) The participating States decide

(41.1) - to ensure protection of the human rights of persons with disabilities;

176 OSCE Human Dimension Commitments pa rt II Children

(41.2) - to take steps to ensure the equal opportunity of such persons to participate fully in the life of their society;

(41.3) - to promote the appropriate participation of such persons in decision-making in fields concerning them;

(41.4) - to encourage services and training of social workers for the vocational and social rehabilitation of persons with disabilities;

(41.5) - to encourage favourable conditions for the access of persons with disabilities to public buildings and services, housing, transport, and cultural and recreational activi- ties.

4.7 Children

See also: á Part II. 3.1.11: Freedom of Movement, Human Contacts, and Family Reunification á Part II. 3.2.4: Right to Education á Part II. 4.2: Roma and Sinti á Part II. 4.4: Refugees, Displaced Persons, Returnees, and Stateless Persons á Part II. 4.5: Migrant Workers á Part II. 6.2: Prevention of Trafficking in Human Beings

Copenhagen 1990 (13) The participating States decide to accord particular attention to the recognition of the rights of the child, his civil rights and his individual freedoms, his economic, social and cultural rights, and his right to special protection against all forms of violence and exploitation. They will consider acceding to the Convention on the Rights of the Child, if they have not yet done so, which was opened for signature by States on 26 January 1990. They will recognize in their domestic legislation the rights of the child as affirmed in the international agreements to which they are Parties.

Istanbul 1999 (Summit Declaration) 28. In the year of the 10th anniversary of the adoption of the Convention on the Rights of the Child, and putting the OSCE’s Copenhagen commitments into practice, we com- mit ourselves to actively promote children’s rights and interests, especially in conflict and post-conflict situations. We will regularly address the rights of children in the work of the OSCE (...) We will pay particular attention to the physical and psychological well- being of children involved in or affected by armed conflict.

Istanbul 1999 (Charter for European Security: III. Our Common Response) 24. We will undertake measures to (…) end violence against (…) children as well as sex- ual exploitation and all forms of trafficking in human beings. In order to prevent such crimes we will, among other means, promote the adoption or strengthening of legisla- tion to hold accountable persons responsible for these acts and strengthen the protec-

OSCE Human Dimension Commitments 177 Human Rights with a Focus on Specific Groups pa rt II

tion of victims. We will also develop and implement measures to promote the rights and interests of children in armed conflict and post-conflict situations, including ref- ugees and internally displaced children. We will look at ways of preventing forced or compulsory recruitment for use in armed conflict of persons under 18 years of age.

4.8 Armed Forces Personnel

Budapest 1994 (Decisions: IV. Code of Conduct on Politico-Military Aspects of Security) 27. Each participating State will ensure that the recruitment or call-up of personnel for service in its military, paramilitary and security forces is consistent with its obligations and commitments in respect of human rights and fundamental freedoms.

28. The participating States will reflect in their laws or other relevant documents the rights and duties of armed forces personnel. They will consider introducing exemptions from or alternatives to military service.

(…)

32. Each participating State will ensure that military, paramilitary and security forces personnel will be able to enjoy and exercise their human rights and fundamental free- doms as reflected in CSCE documents and international law, in conformity with rele- vant constitutional and legal provisions and with the requirements of service.

33. Each participating State will provide appropriate legal and administrative proce- dures to protect the rights of all its forces personnel.

4.9 Persons in Detention or Prison

See also: á Part II. 2.4: Rule of Law á Part II. 3.1.4: Freedom from Arbitrary Arrest or Detention

Vienna 1989 (Questions Relating to Security in Europe: Principles) The participating States will

(…)

(23.2) - ensure that all individuals in detention or incarceration will be treated with humanity and with respect for the inherent dignity of the human person;

(23.3) - observe the United Nations Standard Minimum Rules for the Treatment of Pris- oners as well as the United Nations Code of Conduct for Law Enforcement Officials;

178 OSCE Human Dimension Commitments pa rt II Persons in Detention or Prison

Copenhagen 1990 (15) The participating States will act in such a way as to facilitate the transfer of sen- tenced persons and encourage those participating States which are not Parties to the Convention on the Transfer of Sentenced Persons, signed at Strasbourg on 21 Novem- ber 1983, to consider acceding to the Convention.

Moscow 1991 (23) The participating States will treat all persons deprived of their liberty with human- ity and with respect for the inherent dignity of the human person and will respect the internationally recognized standards that relate to the administration of justice and the human rights of detainees.

(…)

(vi) any person arrested or detained will have the right, without undue delay, to notify or to require the competent authority to notify appropriate persons of his choice of his arrest, detention, imprisonment and whereabouts; any restriction in the exercise of this right will be prescribed by law and in accordance with international standards;

(vii) effective measures will be adopted, if this has not already been done, to provide that law enforcement bodies do not take undue advantage of the situation of a detained or imprisoned person for the purpose of compelling him to confess, or otherwise to incriminate himself, or to force him to testify against any other person;

(viii) the duration of any interrogation and the intervals between them will be recorded and certified, consistent with domestic law;

(ix) a detailed person or his counsel will have the right to make a request or complaint regarding his treatment, in particular when torture or other cruel, inhuman or degrad- ing treatment has been applied, to the authorities responsible for the administration of the place of detention and to higher authorities, and when necessary, to appropriate authorities vested with reviewing or remedial power;

(x) such request or complaint will be promptly dealt with and replied to without undue delay; if the request or complaint is rejected or in case of inordinate delay, the complain- ant will be entitled to bring it before a judicial or other authority; neither the detained or imprisoned person nor any complainant will suffer prejudice for making a request or complaint;

(…)

(23.2) The participating States will

(i) endeavour to take measures, as necessary, to improve the conditions of individuals in detention or imprisonment;

(ii) pay particular attention to the question of alternatives to imprisonment.

OSCE Human Dimension Commitments 179 5. Commitments Related to Equality, Tolerance, and Non-discrimination

5.1 Equality and Non-discrimination Clauses

Helsinki 1975 (Questions Relating to Security in Europe: 1.(a) Declaration on Principles Guiding Relations between Participating States – Principle VII) The participating States will respect human rights and fundamental freedoms (…) for all without distinction as to race, sex, language or religion.

Vienna 1989 (Questions Relating to Security in Europe: Principles) (13.7) - ensure human rights and fundamental freedoms to everyone within their terri- tory and subject to their jurisdiction, without distinction of any kind such as race, col- our, sex, language, religion, political or other opinion, national or social origin, prop- erty, birth or other status;

(13.8) - ensure that no individual exercising, expressing the intention to exercise or seeking to exercise these rights and freedoms or any member of his family, will as a consequence be discriminated against in any manner;

Copenhagen 1990 (5) [The participating States] solemnly declare that among those elements of justice which are essential to the full expression of the inherent dignity and of the equal and inalienable rights of all human beings are the following:

(…)

(5.9) - all persons are equal before the law and are entitled without any discrimination to the equal protection of the law. In this respect, the law will prohibit any discrimina- tion and guarantee to all persons equal and effective protection against discrimination on any ground;

OSCE Human Dimension Commitments 181 Equality, Tolerance, and Non-discrimination pa rt II

(…)

(25.3) - measures derogating from obligations will be limited to the extent strictly required by the exigencies of the situation;

(25.4) - such measures will not discriminate solely on the grounds of race, colour, sex, language, religion, social origin or of belonging to a minority.

(…)

(31) Persons belonging to national minorities have the right to exercise fully and effec- tively their human rights and fundamental freedoms without any discrimination and in full equality before the law.

The participating States will adopt, where necessary, special measures for the purpose of ensuring to persons belonging to national minorities full equality with the other citi- zens in the exercise and enjoyment of human rights and fundamental freedoms.

5.2 Equal Rights of Men and Women

Madrid 1983 (Questions Relating to Security in Europe: Principles) [The participating States] stress the importance of ensuring equal rights of men and women; accordingly, they agree to take all actions necessary to promote equally effec- tive participation of men and women in political, economic, social and cultural life.

Vienna 1989 (Questions Relating to Security in Europe: Principles) (15) The participating States confirm their determination to ensure equal rights of men and women. Accordingly, they will take all measures necessary, including legislative measures, to promote equally effective participation of men and women in political, economic, social and cultural life. They will consider the possibility of acceding to the Convention on the Elimination of All Forms of Discrimination Against Women, if they have not yet done so.

Moscow 1991 (40) The participating States recognize that full and true equality between men and women is a fundamental aspect of a just and democratic society based on the rule of law. They recognize that the full development of society and the welfare of all its mem- bers require equal opportunity for full and equal participation of men and women. In this context they will

(40.1) - ensure that all CSCE commitments relating to the protection and promotion of human rights and fundamental freedoms are applied fully and without discrimination with regard to sex;

(40.2) - comply with the Convention on the Elimination of All Forms of Discrimina- tion against Women (CEDAW), if they are parties, and, if they have not already done so,

182 OSCE Human Dimension Commitments pa rt II Equal Rights of Men and Women

consider ratifying or acceding to this Convention; States that have ratified or acceded to this Convention with reservations will consider withdrawing them;

(40.3) - effectively implement the obligations in international instruments to which they are parties and take appropriate measures to implement the United Nations Nai- robi Forward-looking Strategies for the Advancement of Women (FLS);

(40.4) - affirm that it is their goal to achieve not only de jure but de facto equality of opportunity between men and women and to promote effective measures to that end;

(40.5) - establish or strengthen national machinery, as appropriate, for the advancement of women in order to ensure that programmes and policies are assessed for their impact on women;

(40.6) - encourage measures effectively to ensure full economic opportunity for women, including non-discriminatory employment policies and practices, equal access to edu- cation and training, and measures to facilitate combining employment with family responsibilities for female and male workers; and will seek to ensure that any structural adjustment policies or programmes do not have an adversely discriminatory effect on women;

(40.7) - seek to eliminate all forms of violence against women, and all forms of traffic in women and exploitation of prostitution of women including by ensuring adequate legal prohibitions against such acts and other appropriate measures;

(40.8) - encourage and promote equal opportunity for full participation by women in all aspects of political and public life, in decision-making processes and in international co-operation in general;

(40.9) - recognize the vital role women and women’s organizations play in national and international efforts to promote and enhance women’s rights by providing, inter alia, direct services and support to women and encouraging a meaningful partnership between governments and these organizations for the purpose of advancing equality for women;

(40.10) - recognize the rich contribution of women to all aspects of political, cultural, social and economic life and promote a broad understanding of these contributions, including those made in the informal and unpaid sectors;

(40.11) - take measures to encourage that information regarding women and women’s rights under international and domestic law is easily accessible;

(40.12) - develop educational policies, consistent with their constitutional systems, to support the participation of women in all areas of study and work, including non-tradi- tional areas, and encourage and promote a greater understanding of issues relating to equality between men and women;

OSCE Human Dimension Commitments 183 Equality, Tolerance, and Non-discrimination pa rt II

(40.13) - ensure the collection and analysis of data to assess adequately, monitor and improve the situation of women; these data should not contain any personal informa- tion.

Istanbul 1999 (Charter for European Security: III. Our Common Response) 23. The full and equal exercise by women of their human rights is essential to achieve a more peaceful, prosperous and democratic OSCE area. We are committed to making equality between men and women an integral part of our policies, both at the level of our States and within the Organization.

(…)

24. We will undertake measures to eliminate all forms of discrimination against women, and to end violence against women and children as well as sexual exploitation and all forms of trafficking in human beings (…)

Maastricht 2003 (Decisions: Decision No. 4/03 on Tolerance and Non-discrimination) The Ministerial Council

(…)

2. Decides to enhance the efforts being made to increase women’s participation and the role of women in furthering democratization and economic development, and to con- sider integrating the provisions of the OSCE Action Plan on Gender Issues where appli- cable into national policies. Further decides to enhance its efforts to achieve gender bal- ance at all levels within the OSCE, taking full account also in this respect of the princi- ple of recruiting staff from all participating States on a fair basis (…)

Sofia 2004 (Decisions: Decision No. 14/04 on the 2004 OSCE Action Plan for the Promotion of Gender Equality) The Ministerial Council,

(…)

Recognizing that equal rights of women and men and the protection of their human rights are essential to peace, sustainable democracy, economic development and there- fore to security and stability in the OSCE region,

(…)

Mindful of the need to appropriately reflect a gender perspective in the activities con- ducted under the auspices of the OSCE, and for participating States to take all neces- sary measures to encourage gender awareness raising and to promote equality in rights and full and equal participation of women and men in society, the aim being to promote the practice of gender equality and gender-mainstreaming* in the OSCE area, which is essential to comprehensive security,

184 OSCE Human Dimension Commitments pa rt II Equal Rights of Men and Women

(…)

Decides to endorse the 2004 Action Plan for the Promotion of Gender Equality adopted by the Permanent Council in its Decision No. 638 on 2 December 2004, and annexed to this Decision.

Sofia 2004 (Decisions: Annex to Decision No. 14/04: 2004 OSCE Action Plan for the Promotion of Gender Equality) (…)

3. Effective gender-mainstreaming* with the goal of achieving gender equality, is impor- tant if full use is to be made of the human capital in the OSCE area. Gender equality contributes to comprehensive security, which is a goal of OSCE activities in all three dimensions. Gender-mainstreaming is a way of contributing to attaining this goal. The gender perspective should therefore be taken into account in the Organization’s activi- ties, projects and programmes, in order for the Organization to achieve gender equal- ity within its own operations as well as in the participating States. It is the joint respon- sibility of the participating States, the Chairman-in-Office, the Secretary General, and the Heads of institutions and missions to promote equality between women and men as an integral element of policies and practices of the OSCE. In this effort it shall be borne in mind that if gender equality is to become a reality in any area and at any level of soci- ety, both men and women will benefit from such a change.

(…)

8. Gender-mainstreaming requires consistent, systematic, attention to gender perspec- tives (…) based on a cross-dimensional approach, and also adequate monitoring and review mechanisms (…)

IV. Promoting Gender Equality in Participating States

41. Participating States, individually and collectively, bear the primary responsibility and are accountable to their citizens for the implementation of their commitments on equality of rights and equal opportunities for women and men. They have committed themselves to making equality between women and men an integral part of policies both at State level and within the Organization. They will ensure the full use of the appropriate OSCE fora for reviewing the implementation of OSCE commitments on equality between women and men.

42. Participating States are therefore recommended to:

* “Mainstreaming a gender perspective is the process of assessing the implications for women and men of any planned action, including legislation, policies or programmes, in all areas and at all levels. It is a strategy for making women’s as well as men’s concerns and experiences an integral dimension of the design, implementation, monitoring and evaluation of policies and programmes in all political, economic and societal spheres so that women and men benefit equally and inequality is not perpetuated. The ultimate goal is to achieve gender equality.” See Official Records of the General Assembly, Fifty-Second Session, Supplement No. 3 (A/52/3/Rev.1), chapter IV, paragraph 4.

OSCE Human Dimension Commitments 185 Equality, Tolerance, and Non-discrimination pa rt II

• Ensure that the Organization develops policies which effectively promote gen- der equality and that new proposals and initiatives take a gender perspective into account;

• Establish or strengthen existing mechanisms for ensuring gender equality, inter alia by making available the services of an impartial and independent person or body, such as an Ombudsman/Human Rights Commissioner, to address gender related discrimi- nation against individual citizens;

• Adhere to and fully implement the international standards and commitments they have undertaken concerning equality, non-discrimination and women’s and girls’ rights;

• Comply with the Convention on the Elimination of All Forms of Discrimination against Women (CEDAW), if they are parties, or, if they have not already done so, con- sider ratifying or acceding to this Convention. States that have ratified or acceded to this Convention with reservations will consider withdrawing them. States parties to the CEDAW are also called upon to consider ratifying the Optional Protocol to the Convention on the Elimination of All Forms of Discrimination Against Women;

• If they are parties to the Convention on the Elimination of All Forms of Discrimi- nation Against Women (CEDAW), the International Covenant on Civil and Political Rights (ICCPR), and/or the International Covenant on Economic, Social and Cultural Rights (ICESCR), report regularly and on time to the respective bodies, and include women’s organizations in the preparation of their reports;

• Take further action where necessary in order to ensure a safe environment for their citizens and the right to equal protection under the law (…)

(…)

• Draw on the experience of the OSCE to develop cross-dimensional gender equality policies and strategies, and include in the follow-up to such policies, inter alia, the uti- lization of gender analysis and monitoring mechanisms to assess the impact of gender policies and strategies, so that constraints on their full implementation may be identi- fied and addressed.

5.3 Combating Acts Motivated by Prejudice, Intolerance, and Hatred

5.3.1 General Provisions Vienna 1989 (Questions Relating to Security in Europe: Principles) (16) (…) the participating States will, inter alia,

(16.1) - take effective measures to prevent and eliminate discrimination against indi- viduals or communities on the grounds of religion or belief in the recognition, exercise and enjoyment of human rights and fundamental freedoms in all fields of civil, political,

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economic, social and cultural life, and to ensure the effective equality between believ- ers and non-believers;

Copenhagen 1990 (40) The participating States clearly and unequivocally condemn totalitarianism, racial and ethnic hatred, anti-semitism, xenophobia and discrimination against anyone as well as persecution on religious and ideological grounds. In this context, they also rec- ognize the particular problems of Roma (gypsies).

They declare their firm intention to intensify the efforts to combat these phenomena in all their forms and therefore will

(…)

(40.2) -commit themselves to take appropriate and proportionate measures to protect persons or groups who may be subject to threats or acts of discrimination, hostility or violence as a result of their racial, ethnic, cultural, linguistic or religious identity, and to protect their property;

Helsinki 1992 (Summit Declaration) 12. (…) we reject racial, ethnic and religious discrimination in any form. Freedom and tolerance must be taught and practised.

Helsinki 1992 (Decisions: VI. The Human Dimension) The participating States

(30) Express their concern over recent and flagrant manifestations of intolerance, dis- crimination, aggressive nationalism, xenophobia, anti-semitism and racism and stress the vital role of tolerance, understanding and co-operation in the achievement and preservation of stable democratic societies;

Rome 1993 (Decisions: X. Declaration on Aggressive Nationalism, Racism, Chauvinism, Xenophobia and Anti-Semitism) 1. (…) the Ministers noted with deep concern the growing manifestations of aggressive nationalism, such as territorial expansionism, as well as racism, chauvinism, xenopho- bia and anti-semitism. These run directly counter to the principles and commitments of the CSCE.

2. The Ministers also noted that these phenomena can lead to violence, secessionism by the use of force and ethnic strife, and in their worst instances to the barbaric practices of mass deportation, ethnic cleansing and violence against innocent civilians.

3. Aggressive nationalism, racism, chauvinism, xenophobia and anti-semitism create ethnic, political and social tensions within and between States. They also undermine international stability and worldwide efforts to place universal human rights on a firm foundation.

OSCE Human Dimension Commitments 187 Equality, Tolerance, and Non-discrimination pa rt II

4. The Ministers focused attention on the need for urgent action to enforce the strict observance of the norms of international humanitarian law, including the prosecution and punishment of those guilty of war crimes and other crimes against humanity.

5. The Ministers agreed that the CSCE must play an important role in these efforts. The clear standards of behaviour reflected in CSCE commitments include active support for the equal rights of all individuals in accordance with international law and for the pro- tection of national minorities.

Budapest 1994 (Decisions: VIII. The Human Dimension) 25. The participating States condemn manifestations of intolerance, and especially of aggressive nationalism, racism, chauvinism, xenophobia and anti-semitism, and will continue to promote effective measures aimed at their eradication (…) They condemn all crimes committed in the pursuit of so-called “ethnic cleansing” and will continue to give their effective support to the International War Crimes Tribunal for the former Yugoslavia in The Hague.

26. They commend the Council of Europe’s plan of action on racism, xenophobia, anti- semitism and intolerance. In following up the Rome Council’s Declaration, CSCE insti- tutions will explore possibilities for joint work with the Council of Europe, as well as the United Nations and other international organizations.

27. Reaffirming their commitment to ensure freedom of conscience and religion and to foster a climate of mutual tolerance and respect between believers of different com- munities as well as between believers and non-believers, they expressed their concern about the exploitation of religion for aggressive nationalist ends.

Lisbon 1996 (Summit Declaration) 9. (...) Among the acute problems within the human dimension, the continuing vio- lations of human rights, such as (...) manifestations of aggressive nationalism, racism, chauvinism, xenophobia and anti-Semitism, continue to endanger stability in the OSCE region. We are committed to continuing to address these problems.

10. Against the background of recent refugee tragedies in the OSCE region and tak- ing into account the issue of forced migration, we again condemn and pledge to refrain from any policy of ‘ethnic cleansing’ or mass expulsion. Our States will facilitate the return, in safety and in dignity, of refugees and internally displaced persons, according to international standards. Their reintegration into their places of origin must be pur- sued without discrimination.

Istanbul 1999 (Charter for European Security: IV. Our Common Instruments) 19. (…) We commit ourselves to counter such threats to security as violations of human rights and fundamental freedoms, including the freedom of thought, conscience, reli- gion or belief and manifestations of intolerance, aggressive nationalism, racism, chau- vinism, xenophobia and anti-semitism.

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(…)

22. We reject any policy of ethnic cleansing or mass expulsion.

(…)

44. We will work to enhance the OSCE’s role in civilian police-related activities (…) Such activities may comprise:

• Police monitoring, including with the aim of preventing police from carrying out such activities as discrimination based on religious and ethnic identity;

(…)

• Creating a police service with a multi-ethnic and/or multi-religious composition that can enjoy the confidence of the entire population;

Bucharest 2001 (Annex to Decision 1 on Combating Terrorism; The Bucharest Plan of Action for Combating Terrorism) 11. Participating States/Permanent Council/ODIHR/High Commissioner on National Minorities (HCNM)/Representative on Freedom of the Media: (…) Will provide early warning of and appropriate responses to violence, intolerance, extremism and dis- crimination against these [ethnic, religious, linguistic and other] groups and, at the same time, promote their respect for the rule of law, democratic values and individual freedoms.

Porto 2002 (Decisions: Decision No. 6 on Tolerance and Non-Discrimination) The Ministerial Council,

(…)

Reiterating that democracy and protection of human rights and fundamental freedoms are essential safeguards of tolerance and non-discrimination and constitute important factors for stability, security, co-operation and peaceful development throughout the entire OSCE region, and that conversely tolerance and non-discrimination are impor- tant elements in the promotion of human rights

(…)

Noting that promoting tolerance and non-discrimination can also contribute to elimi- nating the basis for hate speech and aggressive nationalism, racism, chauvinism, xeno- phobia, anti-Semitism and violent extremism,

Recognizing the responsibility of participating States for promoting tolerance and non- discrimination,

OSCE Human Dimension Commitments 189 Equality, Tolerance, and Non-discrimination pa rt II

1.(a) Condemns in strongest terms all manifestations of aggressive nationalism, racism, chauvinism, xenophobia, anti-Semitism and violent extremism, as well as hate speech and occurrences of discrimination based on religion or belief;

(…)

2. Decides to intensify efforts to maintain and strengthen tolerance and non-discrim- ination, with the assistance of OSCE institutions and in co-operation with relevant international organizations and civil society, by such means as the exchanges of infor- mation and best practice;

(…)

5. Condemns, in particular, discrimination on religious grounds and undertakes to endeavour to prevent and protect against attacks directed at any religious group, whether on persons or on places of worship or religious objects;

6. Condemns in particular the recent increase in anti-Semitic incidents in the OSCE area, recognizing the role that the existence of anti-Semitism has played throughout history as a major threat to freedom;

7. Also condemns the recent increase in acts of discrimination and violence against Muslims in the OSCE area and rejects firmly the identification of terrorism and extrem- ism with a particular religion or culture;

8. Decides to take strong public positions against hate speech and other manifestations of aggressive nationalism, racism, chauvinism, xenophobia, anti-Semitism and violent extremism, as well as occurrences of discrimination based on religion or belief;

Maastricht 2003 (OSCE Strategy to Address Threats to Security and Stability in the Twenty-First Century) Threats to security and stability in the twenty-first century

(…)

12. Practices related to discrimination and intolerance both threaten the security of individuals and may give rise to wider-scale conflict and violence. They can have their root in issues such as ethnic and religious tensions, aggressive nationalism, chauvinism and xenophobia, and may also stem from racism, anti-Semitism and violent extremism, as well as lack of respect for the rights of persons belonging to national minorities.

13. The mobility of migrant populations and the emergence of societies with many coexisting cultures in all parts of the OSCE region present growing opportunities as well as challenges. Failure to integrate societies and failure also by everyone who resides in them to respect the rights of all can undermine stability.

(…)

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Addressing threats related to discrimination and intolerance

36. Discrimination and intolerance are among the factors that can provoke conflicts, which undermine security and stability. Based on its human dimension commitments, the OSCE strives to promote conditions throughout its region in which all can fully enjoy their human rights and fundamental freedoms under the protection of effective democratic institutions, due judicial process and the rule of law. This includes secure environments and institutions for peaceful debate and expression of interests by all individuals and groups of society. Civil society has an important role to play in this regard, and the OSCE will continue to support and help strengthen civil society organ- izations.

(…)

38. The participating States and OSCE bodies and institutions are committed to step- ping up their efforts to counter threats arising from discrimination and intolerance. Harmonious relations between ethnic, religious, linguistic and other groups and the rights of persons belonging to national minorities will be actively promoted (…) Vio- lence, intolerance, extremism and discrimination against these groups, including migrant workers, asylum seekers and other immigrants, must be counteracted and per- sons responsible for such actions held accountable. At the same time, the respect of persons belonging to such groups for the rule of law, democratic values and individual freedoms is essential.

Maastricht 2003 (Decisions: Decision No. 4/03 on Tolerance and Non-discrimination) The Ministerial Council,

(…)

Reaffirming its commitment to promote tolerance and combat discrimination, and its concern about all manifestations of aggressive nationalism, racism, chauvinism, xeno- phobia, anti-Semitism and violent extremism in all participating States, as well as dis- crimination based, inter alia, on race, color, sex, language, religion or belief, political or other opinion, national or social origin, property, birth or other status,

Urging the relevant authorities in all participating States to continue to condemn pub- licly, at the appropriate level and in the appropriate manner, violent acts motivated by discrimination and intolerance,

Affirming its commitment to increase its efforts for the promotion of tolerance and non-discrimination in all fields (…)

8. Recognizes the need to combat hate crimes, which can be fuelled by racist, xenopho- bic, and anti-Semitic propaganda on the internet (…)

9. Affirms the importance of freedom of thought, conscience, religion or belief, and con- demns all discrimination and violence, including against any religious group or individ-

OSCE Human Dimension Commitments 191 Equality, Tolerance, and Non-discrimination pa rt II

ual believer. Commits to ensure and facilitate the freedom of the individual to profess and practice a religion or belief, alone or in community with others, where necessary through transparent and non-discriminatory laws, regulations, practices and policies. Encourages the participating States to seek the assistance of the ODIHR and its Panel of Experts on Freedom of Religion or Belief (…)

11. Undertakes to combat discrimination against migrant workers. Further under- takes to facilitate the integration of migrant workers into the societies in which they are legally residing. Calls on the ODIHR to reinforce its activities in this respect;

12. Undertakes, in this context, to combat, subject to national legislation and interna- tional commitments, discrimination, where existing, against asylum seekers and refu- gees, and calls on the ODIHR to reinforce its activities in this respect;

13. Takes into account the UN Guiding Principles on Internal Displacement as a useful framework for the work of the OSCE and the endeavours of participating States in deal- ing with internal displacement (…)

15. Decides to intensify the co-operation of the OSCE with relevant international organ- izations such as the United Nations, the Council of Europe and the European Union, as well as with civil society and relevant non-governmental organizations to promote tol- erance and non-discrimination (…)

Sofia 2004 (Ministerial Declaration on the Sixtieth Anniversary of the End of World War II) We have learned from history the danger of intolerance, discrimination, extremism and hatred on ethnic, racial and religious grounds. We are committed to combat these threats, including through the OSCE, and we reject any attempts to justify them.

We strongly condemn any denial of the Holocaust. We condemn all forms of ethnic cleansing. We confirm our adherence to the UN Convention on the Prevention and Punishment of the Crime of Genocide adopted on 9 December 1948. We call on the participating States to take every possible action to ensure that attempts to commit genocide are prevented today and in the future. The perpetrators of such crimes should be brought to justice.

Sofia 2004 (Decisions: Annex to Decision No. 12/04 on Tolerance and Non- discrimination; Permanent Council Decision No. 607: Combating Anti-Semitism) The Ministerial Council,

(…)

2. Endorses the Permanent Council Decisions on Combating Anti-Semitism (PC. DEC/607) and on Tolerance and the Fight against Racism, Xenophobia and Discrimina- tion (PC.DEC/621) and the Permanent Council Decision on Promoting Tolerance and Media Freedom on the Internet (PC.DEC/633), annexed to this decision;

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3. Further decides to intensify efforts for the implementation of these three decisions, which include commitments in the fields of, inter alia, education, media, legislation, law enforcement, migration and religious freedom;

(…)

5. Welcomes the intention of the Chairman-in-Office to appoint, in accordance with Porto Ministerial Council Decision No. 8, three personal representatives as part of the overall fight of the OSCE in combating discrimination and promoting tolerance (…)

Sofia 2004 (Decisions: Annex to Decision No. 12/04 on Tolerance and Non- discrimination; Permanent Council Decision No. 607: Combating Anti-Semitism) The Permanent Council,

(…)

In order to reinforce our common efforts to combat anti-Semitism across the OSCE region,

Decides,

1. The participating States commit to:

• Strive to ensure that their legal systems foster a safe environment free from anti- Semitic harassment, violence or discrimination in all fields of life;

• Combat hate crimes, which can be fuelled by racist, xenophobic and anti-Semitic propaganda in the media and on the Internet;

• Encourage and support international organization and NGO efforts in these areas (…)

(…)

• Work with the OSCE Parliamentary Assembly to determine appropriate ways to review periodically the problem of anti-Semitism;

• Encourage development of informal exchanges among experts in appropriate fora on best practices and experiences in law enforcement and education;

(…)

Sofia 2004 (Decisions: Annex to Decision No. 12/04 on Tolerance and Non- discrimination; Permanent Council Decision No. 621: Tolerance and the Fight against Racism, Xenophobia and Discrimination) The Permanent Council,

(…)

OSCE Human Dimension Commitments 193 Equality, Tolerance, and Non-discrimination pa rt II

In order to reinforce our common efforts to fight manifestations of intolerance across the OSCE region,

Decides,

1. The participating States commit to:

(…)

• Take steps to combat acts of discrimination and violence against Muslims in the OSCE area;

• Take steps, in conformity with their domestic law and international obligations, against discrimination, intolerance and xenophobia against migrants and migrant workers;

• Consider undertaking activities to raise public awareness of the enriching contribu- tion of migrants and migrant workers to society;

• Combat hate crimes, which can be fuelled by racist, xenophobic and anti-Semitic propaganda in the media and on the Internet, and appropriately denounce such crimes publicly when they occur;

(…)

• Encourage and support international organization and NGO efforts in these areas;

(…)

• Examine the possibility of establishing within countries appropriate bodies to pro- mote tolerance and to combat racism, xenophobia, discrimination or related intoler- ance, including against Muslims, and anti-Semitism;

(…)

• Work with the OSCE Parliamentary Assembly to determine appropriate ways to review periodically the problems of racism, xenophobia and discrimination;

• Encourage development of informal exchanges among experts in appropriate fora on best practices and experiences in law enforcement and education;

(…)

5.3.2 International Instruments Copenhagen 1990 (40) (…) [The participating States] (…) will

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(40.6) - consider adhering, if they have not yet done so, to the international instruments which address the problem of discrimination and ensure full compliance with the obli- gations therein, including those relating to the submission of periodic reports;

(40.7) - consider, also, accepting those international mechanisms which allow States and individuals to bring communications relating to discrimination before interna- tional bodies.

Helsinki 1992 (Decisions: VI. The Human Dimension) [The participating States]

(32) Will consider adhering to the International Convention on the Elimination of All Forms of Racial Discrimination, if they have not already done so;

Sofia 2004 (Ministerial Declaration on the Sixtieth Anniversary of the End of World War II) (…) We confirm our adherence to the UN Convention on the Prevention and Punish- ment of the Crime of Genocide adopted on 9 December 1948 (…)

5.3.3 Legislation and Enforcement of Laws and Policies Copenhagen 1990 (40) (…) [The participating States] (…) will

(40.1) - take effective measures, including the adoption, in conformity with their consti- tutional systems and their international obligations, of such laws as may be necessary, to provide protection against any acts that constitute incitement to violence against persons or groups based on national, racial, ethnic or religious discrimination, hostility or hatred, including anti-semitism;

(…)

(40.5) - recognize the right of the individual to effective remedies and endeavour to recognize, in conformity with national legislation, the right of interested persons and groups to initiate and support complaints against acts of discrimination, including rac- ist and xenophobic acts;

Helsinki 1992 (Decisions: VI. The Human Dimension) [The participating States]

(33) Will consider taking appropriate measures within their constitutional framework and in conformity with their international obligations to assure to everyone on their territory protection against discrimination on racial, ethnic and religious grounds, as well as to protect all individuals, including foreigners, against acts of violence, including on any of these grounds. Moreover, they will make full use of their domestic legal proc- esses, including enforcement of existing laws in this regard;

OSCE Human Dimension Commitments 195 Equality, Tolerance, and Non-discrimination pa rt II

(…)

Budapest 1994 (Decisions: VIII. The Human Dimension) 25. The participating States condemn manifestations of intolerance, and especially of aggressive nationalism, racism, chauvinism, xenophobia and anti-semitism, and will continue to promote effective measures aimed at their eradication (…) They will seek to strengthen or adopt appropriate legislation to this end and take the necessary measures to ensure that existing legislation is effectively implemented, in a way that would deter manifestations of these phenomena. They also stress that action to combat these phe- nomena should be seen as an integral part of integration policy and education.

Porto 2002 (V. Decisions: Decision No. 6 on Tolerance and Non-discrimination) The Ministerial Council,

9. Calls on relevant authorities of participating States to investigate promptly and impartially acts of violence, especially where there are reasonable grounds to suspect that they were motivated by aggressive nationalism, racism, chauvinism, xenophobia, anti-Semitism and violent extremism, as well as attacks motivated by hatred against a particular religion or belief, and to prosecute those responsible in accordance with domestic law and consistent with relevant international standards of human rights;

(…)

Maastricht 2003 (Decisions: Annex to Decision No. 3/03, Action Plan on Improving the Situation of Roma and Sinti within the OSCE Area) In order to counter prejudice (…) and to effectively elaborate and implement policies to combat discrimination and racial violence, the following actions are recommended:

Legislation and law enforcement

Recommended action by participating States:

7. Consider ratifying the relevant international treaties as soon as possible, if they have not already done so, inter alia, the International Convention on the Elimination of All Forms of Racial Discrimination.

8. Adopt and implement effective anti-discrimination legislation to combat racial and ethnic discrimination in all fields, including, inter alia, access to housing, citizenship and residence, education, employment, health and social services. Involve Roma and Sinti representatives in the design, implementation and evaluation processes.

9. The anti-discrimination legislation should ensure:

• Prohibition of both direct and indirect racial discrimination;

• Imposition of effective, proportionate and dissuasive sanctions for discriminatory acts or practices;

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• Imposition of heavier sentences for racially motivated crimes by both private individu- als and public officials;

• Equal access to effective remedies (judicial, administrative, conciliation or mediation procedures).

10. It should be ensured that national legislation prohibits all kinds of discriminatory acts and that all cases of suspected discrimination are thoroughly and objectively inves- tigated.

11. Create, where appropriate, specialized institutions to ensure the implementation of such legislation, as well as domestic mechanisms to monitor and report regularly and with transparency on the progress achieved in its implementation (…)

Maastricht 2003 (Decisions: Decision No. 4/03 on Tolerance and Non-discrimination) The Ministerial Council,

(…)

6. (…) Recognizing the importance of legislation to combat hate crimes, participating States will inform the ODIHR about existing legislation regarding crimes fuelled by intolerance and discrimination, and, where appropriate, seek the ODIHR’s assistance in the drafting and review of such legislation;

(…)

Sofia 2004 (Decisions: Annex to Decision No. 12/04 on Tolerance and Non- discrimination; Permanent Council Decision No. 621: Tolerance and the Fight against Racism, Xenophobia and Discrimination) The Permanent Council,

(…)

In order to reinforce our common efforts to fight manifestations of intolerance across the OSCE region,

Decides,

1. The participating States commit to:

• Consider enacting or strengthening, where appropriate, legislation that prohibits dis- crimination based on, or incitement to hate crimes motivated by, race, colour, sex, lan- guage, religion, political or other opinion, national or social origin, property, birth or other status;

(…)

OSCE Human Dimension Commitments 197 Equality, Tolerance, and Non-discrimination pa rt II

• Consider establishing training programmes for law enforcement and judicial officials on legislation and enforcement of legislation relating to hate crimes;

Sofia 2004 (Decisions: Annex to Decision No. 12/04 on Tolerance and Non- discrimination; Permanent Council Decision No. 633: Promoting Tolerance and Media Freedom on the Internet) The Permanent Council,

(…)

Decides that:

(…)

2. Participating States should investigate and, where applicable, fully prosecute violence and criminal threats of violence, motivated by racist, xenophobic, anti-Semitic or other related bias on the Internet;

3. Participating States should train law enforcement agents and prosecutors on how to address crimes motivated by racist, xenophobic, anti-Semitic or other related bias on the Internet and should share information on successful training programmes as part of the exchange of best practices;

5.3.4 Data Collection and Monitoring Geneva 1991 (VI) Moreover, in order to heighten public awareness of prejudice and hatred, to improve enforcement of laws against hate-related crime and otherwise to further efforts to address hatred and prejudice in society, [the participating States] will make efforts to collect, publish on a regular basis, and make available to the public, data about crimes on their respective territories that are based on prejudice as to race, ethnic identity or religion, including the guidelines used for the collection of such data. These data should not contain any personal information.

Maastricht 2003 (OSCE Strategy to Address Threats to Security and Stability in the Twenty-First Century) 41. Full use will be made of ODIHR’s monitoring capacity, and operational co-operation with other monitoring bodies in such areas as data collection, information sharing and joint analysis will be promoted in order to have the fullest picture of developments. This will enable the OSCE to efficiently target work towards areas of highest priority.

Maastricht 2003 (Decisions: Decision No. 4/03 on Tolerance and Non-discrimination) The Ministerial Council,

(…)

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6. Encourages all participating States to collect and keep records on reliable informa- tion and statistics on hate crimes, including on forms of violent manifestations of rac- ism, xenophobia, discrimination, and anti-Semitism, as discussed and recommended in the above-mentioned conferences (…)

Sofia 2004 (Decisions: Annex to Decision No. 12/04 on Tolerance and Non-discrimina- tion; Permanent Council Decision No. 607: Combating Anti-Semitism) The Permanent Council,

(…)

In order to reinforce our common efforts to combat anti-Semitism across the OSCE region,

Decides,

1. The participating States commit to:

• Collect and maintain reliable information and statistics about anti-Semitic crimes, and other hate crimes, committed within their territory, report such information peri- odically to the OSCE Office for Democratic Institutions and Human Rights (ODIHR), and make this information available to the public;

Sofia 2004 (Decisions: Annex to Decision No. 12/04 on Tolerance and Non- discrimination; Permanent Council Decision No. 621: Tolerance and the Fight against Racism, Xenophobia and Discrimination) The Permanent Council,

(…)

In order to reinforce our common efforts to fight manifestations of intolerance across the OSCE region,

Decides,

1. The participating States commit to:

(…)

• Collect and maintain reliable information and statistics about hate crimes motivated by racism, xenophobia and related discrimination and intolerance, committed within their territory, report such information periodically to the OSCE Office for Demo- cratic Institutions and Human Rights (ODIHR) and make this information available to the public;

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5.3.5 Promotion of Tolerance, Understanding, and Respect, Including Remembrance Helsinki 1975 (Questions Relating to Security in Europe: 1. (b) Matters Related to Giv- ing Effect to Certain of the Above Principles) (i) The participating States,

(…)

Declare that they are resolved to respect and carry out, in their relations with one another, inter alia, the following provisions which are in conformity with the Declara- tion on Principles Guiding Relations between Participating States:

(…)

• To promote, by all means which each of them considers appropriate, a climate of con- fidence and respect among peoples consonant with their duty to refrain from propa- ganda for wars of aggression or for any threat or use of force inconsistent with the pur- poses of the United Nations and with the Declaration on Principles Guiding Relations between Participating States, against another participating State.

Vienna 1989 (Questions Relating to Security in Europe: Principles) (16) In order to ensure the freedom of the individual to profess and practise religion or belief, the participating States will, inter alia,

(…)

(16.2) - foster a climate of mutual tolerance and respect between believers of different communities as well as between believers and non-believers;

Vienna 1989 (Co-operation in Humanitarian and Other Fields; Co-operation and Exchanges in the Field of Culture) (61) Taking duly into account the originality and diversity of their respective cultures, they will encourage efforts to explore common features and to foster greater awareness of their cultural heritage. Accordingly they will encourage initiatives which may con- tribute to a better knowledge of the cultural heritage of the other participating States in all its forms, including regional aspects and folk art.

Copenhagen 1990 (36) (…) Every participating State will promote a climate of mutual respect, understand- ing, co-operation and solidarity among all persons living on its territory, without dis- tinction as to ethnic or national origin or religion, and will encourage the solution of problems through dialogue based on the principles of the rule of law.

(…)

(40) (…) [The participating States] (…) will

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(…)

(40.3) - take effective measures, in conformity with their constitutional systems, at the national, regional and local levels to promote understanding and tolerance, particularly in the fields of education, culture and information;

(40.4) - endeavour to ensure that the objectives of education include special attention to the problem of racial prejudice and hatred and to the development of respect for differ- ent civilizations and cultures;

Paris 1990 (A New Era of Democracy, Peace and Unity) We recognize the essential contribution of our common European culture and our shared values in overcoming the division of the continent. Therefore, we underline our attachment to creative freedom and to the protection and promotion of our cultural and spiritual heritage, in all its richness and diversity.

Cracow 1991 (Preamble) The participating States express their deeply held conviction that they share common values forged by history and based, inter alia, on respect for the individual, freedom of conscience, religion or belief, freedom of expression, recognition of the importance of spiritual and cultural values, commitment to the rule of law, tolerance and openness to dialogue with other cultures.

(…)

The participating States respect the irreplaceable uniqueness of all their cultures and will endeavour to promote continued cultural dialogue among themselves and with the rest of the world. They reaffirm their belief that respect for cultural diversity promotes understanding and tolerance among individuals and groups.

They consider that the regional aspects of culture should in themselves constitute a fac- tor in the understanding between peoples.

Regional cultural diversity is an expression of the richness of the common cultural iden- tity of the participating States. Its preservation and protection contribute to building a democratic, peaceful and united Europe.

(…)

II. Culture and Heritage

18. Partnerships among diverse groups at the local, regional and national level, from both the private and the public sector, are valuable for ensuring the effective and rep- resentative preservation of the cultural heritage. The preservation and interpretation of the values and the cultural heritage of diverse groups will be enhanced with the involve- ment of those groups, which is conducive to the tolerance and respect for different cul- tures which are of paramount importance.

OSCE Human Dimension Commitments 201 Equality, Tolerance, and Non-discrimination pa rt II

(…)

III. Principal Areas of Preservation and Co-operation

27. Bearing in mind the important role that regional aspects of culture may play in link- ing people across national borders, the participating States will favour regional co-oper- ation at the level of local and national authorities as well as non-governmental organiza- tions with a view to fostering good-neighbourly relations.

(…)

31. The participating States will strive to preserve and protect those monuments and sites of remembrance, including most notably extermination camps, and the related archives, which are themselves testimonials to tragic experiences in their common past. Such steps need to be taken in order that those experiences may be remembered, may help to teach present and future generations of these events, and thus ensure that they are never repeated.

32. The interpretation of sensitive sites of remembrance can serve as a valuable means of promoting tolerance and understanding among people and will take into account social and cultural diversity.

Geneva 1991 (VI) [The participating States] will take effective measures to promote tolerance, under- standing, equality of opportunity and good relations between individuals of different origins within their country.

Moscow 1991 (38.1) (…) They will, in conformity with domestic law and international obligations, take effective measures to promote tolerance, understanding, equality of opportunity and respect for the fundamental human rights of migrant workers (…)

Helsinki 1992 (Summit Declaration) 12. (…) Economic decline, social tension, aggressive nationalism, intolerance, xenopho- bia and ethnic conflicts threaten stability in the CSCE area (…)

There is still much work to be done in building democratic and pluralistic societies, where diversity is fully protected and respected in practice. Consequently, we reject racial, ethnic and religious discrimination in any form. Freedom and tolerance must be taught and practised.

Helsinki 1992 (Decisions: VI. The Human Dimension) The participating States

(30) Express their concern over recent and flagrant manifestations of intolerance, dis- crimination, aggressive nationalism, xenophobia, anti-semitism and racism and stress

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the vital role of tolerance, understanding and co-operation in the achievement and preservation of stable democratic societies;

(…)

(34) Will consider developing programmes to create the conditions for promoting non- discrimination and cross-cultural understanding which will focus on human rights education, grass-roots action, cross-cultural training and research;

Rome 1993 (Decisions: IV. The Human Dimension) 1. (…) Concerned by the root causes of tension stemming from historical prejudices, the Ministers called for efforts, inter alia, through education, to promote tolerance and consciousness of belonging to a system of common values. The Ministers stressed that implementation of human dimension commitments must be a focus of attention in the CSCE’s conflict prevention efforts.

Istanbul 1999 (Charter for European Security: III. Our Common Response) 19. (…) We condemn violence against any minority. We pledge to take measures to pro- mote tolerance and to build pluralistic societies where all, regardless of their ethnic ori- gin, enjoy full equality of opportunity.

Bucharest 2001 (Annex to Decision 1 on Combating Terrorism: The Bucharest Plan of Action for Combating Terrorism) 11. Promoting human rights, tolerance and multi-culturalism: Participating States/Per- manent Council/ODIHR/High Commissioner on National Minorities (HCNM)/Repre- sentative on Freedom of the Media: Will promote and enhance tolerance, co-existence and harmonious relations between ethnic, religious, linguistic and other groups as well as constructive co-operation among participating States in this regard (…)

Bucharest 2001 (Decisions: Decision No. 5) The Ministerial Council,

(…)

Calls on participating States to promote tolerance and non-discrimination (…) through awareness raising campaigns and education;

(…)

Porto 2002 (Charter on Preventing and Combating Terrorism) 21. Acknowledge the positive role the media can play in promoting tolerance and under- standing among religions, beliefs, cultures and peoples (…)

OSCE Human Dimension Commitments 203 Equality, Tolerance, and Non-discrimination pa rt II

Porto 2002 (Decisions: Decision No. 6 on Tolerance and Non-discrimination) The Ministerial Council,

(…) Reiterating that democracy and protection of human rights and fundamental freedoms are essential safeguards of tolerance and non-discrimination and consti- tute important factors for stability, security, co-operation and peaceful development throughout the entire OSCE region, and that conversely tolerance and non-discrimina- tion are important elements in the promotion of human rights,

Recalling the continuing work of the OSCE structures and institutions in the field of promoting human rights, tolerance, non-discrimination and multiculturalism, in par- ticular by the human dimension meetings and activities, projects and programmes including those of participating States,

Stressing the positive role of multicultural and inter-religious dialogue in creating bet- ter understanding among nations and peoples,

Noting that promoting tolerance and non-discrimination can also contribute to elimi- nating the basis for hate speech and aggressive nationalism, racism, chauvinism, xeno- phobia, anti-Semitism and violent extremism,

Recognizing the responsibility of participating States for promoting tolerance and non- discrimination,

(…)

1. (…) (b) Undertakes to further promote multicultural, interethnic and inter-reli- gious dialogue in which governments and civil society will be encouraged to partici- pate actively;

(…)

2. Decides to intensify efforts to maintain and strengthen tolerance and non-discrim- ination, with the assistance of OSCE institutions and in co-operation with relevant international organizations and civil society, by such means as the exchanges of infor- mation and best practice;

(…)

4. Commits to take appropriate measures, in conformity with respective constitutional systems, at national, regional and local levels to promote tolerance and non-discrimina- tion as well as to counter prejudices and misrepresentation, particularly in the field of education, culture and information;

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Maastricht 2003 (OSCE Strategy to Address Threats to Security and Stability in the Twenty-First Century) 40. The OSCE’s efforts will in particular be targeted at the younger generation in order to build up their understanding of the need for tolerance and the importance of recon- ciliation and peaceful coexistence. Their outlook and perspective on the future are key. Where appropriate, the OSCE will therefore take on a stronger role in the field of educa- tion. An area such as human rights education would deserve particular attention.

Sofia 2004 (Decisions: Annex to Decision No. 12/04 on Tolerance and Non-discrimina- tion; Permanent Council Decision No. 607: Combating Anti-Semitism) The Permanent Council,

(…)

In order to reinforce our common efforts to combat anti-Semitism across the OSCE region

Decides,

1. The participating States commit to:

• Promote, as appropriate, educational programmes for combating anti-Semitism;

• Promote remembrance of and, as appropriate, education about the tragedy of the Hol- ocaust, and the importance of respect for all ethnic and religious groups;

(…)

Sofia 2004 (Decisions: Annex to Decision No. 12/04 on Tolerance and Non-discrimina- tion; Permanent Council Decision No. 621: Tolerance and the Fight against Racism, Xen- ophobia and Discrimination) 1. The participating States commit to:

(…)

• Promote and enhance, as appropriate, educational programmes for fostering tolerance and combating racism, xenophobia and discrimination;

• Promote and facilitate open and transparent interfaith and intercultural dialogue and partnerships towards tolerance, respect and mutual understanding

• Encourage the promotion of tolerance, dialogue, respect and mutual understanding through the Media, including the Internet;

(…)

OSCE Human Dimension Commitments 205 Equality, Tolerance, and Non-discrimination pa rt II

5.3.6 Role of the Media Istanbul 1999 (Summit Declaration) 27. We commit ourselves to ensuring the freedom of the media as a basic condition for pluralistic and democratic societies. We are deeply concerned about the exploitation of media in areas of conflict to foment hatred and ethnic tension and the use of legal restrictions and harassment to deprive citizens of free media (…)

Porto 2002 (Charter on Preventing and Combating Terrorism) 22. Commit themselves to combat hate speech and to take the necessary measures to prevent the abuse of the media and information technology for terrorist purposes, ensuring that such measures are consistent with domestic and international law and OSCE commitments;

Maastricht 2003 (OSCE Strategy to Address Threats to Security and Stability in the Twenty-First Century) 37. (…) While fully respecting freedom of expression, the OSCE will strive to combat hate crime which can be fuelled by racist, xenophobic and anti-Semitic propaganda on the Internet.

Sofia 2004 (Decisions: Annex to Decision No. 12/04 on Tolerance and Non-discrimi- nation; Permanent Council Decision No. 621: Tolerance and the Fight against Racism, Xenophobia and Discrimination) The Permanent Council,

(…)

In order to reinforce our common efforts to fight manifestations of intolerance across the OSCE region,

Decides,

1. The participating States commit to:

(…)

• Encourage the promotion of tolerance, dialogue, respect and mutual understanding through the Media, including the Internet;

(…)

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Sofia 2004 (Decisions: Annex to Decision No. 12/04 on Tolerance and Non-discrimina- tion; Permanent Council Decision No. 633: Promoting Tolerance and Media Freedom on the Internet) The Permanent Council,

(…)

Decides that:

1. Participating States should take action to ensure that the Internet remains an open and public forum for freedom of opinion and expression, as enshrined in the Universal Declaration of Human Rights, and to foster access to the Internet both in homes and in schools;

2. Participating States should investigate and, where applicable, fully prosecute violence and criminal threats of violence, motivated by racist, xenophobic, anti-Semitic or other related bias on the Internet;

3. Participating States should train law enforcement agents and prosecutors on how to address crimes motivated by racist, xenophobic, anti-Semitic or other related bias on the Internet and should share information on successful training programmes as part of the exchange of best practices;

(…)

5. Participating States should study the effectiveness of laws and other measures regu- lating Internet content, specifically with regard to their effect on the rate of racist, xeno- phobic and anti-Semitic crimes;

6. Participating States should encourage and support analytically rigorous studies on the possible relationship between racist, xenophobic and anti-Semitic speech on the Internet and the commission of crimes motivated by racist, xenophobic, anti-Semitic or other related bias;

7. The OSCE will foster exchanges directed toward identifying effective approaches for addressing the issue of racist, xenophobic and anti-Semitic propaganda on the Internet that do not endanger the freedom of information and expression. The OSCE will create opportunities, including during the annual Human Dimension Implementation Meet- ing, to promote sharing of best practices;

8. Participating States should encourage the establishment of programmes to educate children and youth about expression motivated by racist, xenophobic, anti-Semitic or other related bias they may encounter on the Internet. Also, as appropriate, participat- ing States and Internet service providers should take steps to increase parental aware- ness of widely available filtering software that enables parents to exercise greater super- vision and control over their children’s use of the Internet. Materials on successful edu-

OSCE Human Dimension Commitments 207 Equality, Tolerance, and Non-discrimination pa rt II

cational programmes and filtering software should be widely disseminated as part of the exchange of best practices;

9. Participating States should welcome continued and increased efforts by NGOs to monitor the Internet for racist, xenophobic and anti-Semitic content, as well as NGOs’ efforts to share and publicize their findings.

208 OSCE Human Dimension Commitments 6. Commitments Related to Specific Threats to Human Security

6.1 Prevention of Gender-Based Persecution, Violence, and Exploitation

See also: á Part II. 4.4: Refugees, Displaced Persons, Returnees, and Stateless Persons á Part II. 5.2: Equal Rights of Men and Women á Part II. 6.2: Prevention of Trafficking in Human Beings á Part II. 7: Commitments Related to International Humanitarian Law

Moscow 1991 [The participating States shall]

(40.7) - seek to eliminate all forms of violence against women, and exploitation of pros- titution of women including by ensuring adequate legal prohibitions against such acts and other appropriate measures;

Istanbul 1999 (Charter for European Security: III. Our Common Response) 24. We will undertake measures to (…) end violence against women (…) as well as sex- ual exploitation... In order to prevent such crimes we will, among other means, promote the adoption or strengthening of legislation to hold accountable persons responsible for these acts and strengthen the protection of victims.

Bucharest 2001 (Decisions: Decision No. 8) The Ministerial Council,

(…)

Convinced of women’s potential to contribute to conflict prevention, reconciliation and peace-building processes,

OSCE Human Dimension Commitments 209 Specific Threats to Human Security pa rt II

Confirming the commitment to protect and promote the rights of women and being aware of the vulnerability of women especially in conflict and post-conflict situations,

Determined to combat all forms of violence against women, including domestic vio- lence,

Recognizing the need for rehabilitation centres for women affected by violence,

(…)

Calls for the implementation of the Action Plan on Gender Issues;

Sofia 2004 (Decisions: Annex to Decision No. 14/04, 2004 OSCE Action Plan for the Promotion of Gender Equality) • Take further action where necessary in order to ensure a safe environment for their citizens and the right to equal protection under the law, notably by increasing activi- ties aimed at eliminating all forms of violence against women (…)

• Support national and international efforts to bring to justice those who have perpe- trated crimes against women which under applicable rules of international law are rec- ognized as war crimes or crimes against humanity, and ensure that existing national legislation on violence against women is enforced, and that new legislation is drafted where necessary;

• As recommended in the Guidelines on International Protection on Gender-Related Persecution within the context of Article 1A (2) of the 1951 Convention relating to the Status of Refugees and/or its 1967 Protocol relating to the Status of Refugees, intro- duce procedural practices, if States have not already done so, that ensure that proper consideration is given to women claimants in refugee status determination procedures and that the range of claims of gender-related persecution are accorded due recogni- tion;

(…)

6.2 Prevention of Trafficking in Human Beings

See also: á Part I. 2.2.4 C: Mechanism to Assist Participating States in Combating Trafficking in Human Beings

6.2.1 General Provisions Regarding Prevention Moscow 1991 (40) The participating States (…) will

(…)

210 OSCE Human Dimension Commitments pa rt II Prevention of Trafficking in Human Beings

(40.7) - seek to eliminate all (…) forms of traffic in women and exploitation of prostitu- tion of women including by ensuring adequate legal prohibitions against such acts and other appropriate measures;

Istanbul 1999 (Charter for European Security: III. Our Common Response) 24. We will undertake measures to (…) end (…) sexual exploitation and all forms of traf- ficking in human beings. In order to prevent such crimes we will, among other means, promote the adoption or strengthening of legislation to hold accountable persons responsible for these acts and strengthen the protection of victims.

Vienna 2000 (Decisions: Decision on Enhancing the OSCE’S Efforts to Combat Traffick- ing in Human Beings) The Ministerial Council,

(…)

Recognizing that trafficking in human beings is an increasing problem and convinced of the necessity for the OSCE to enhance its efforts to combat trafficking in human beings throughout the OSCE region, including in conflict and post-conflict situations, and to contribute to national, regional and international anti-trafficking efforts in defence of human rights and the fight against transnational organized crime,

1. Reaffirms that trafficking in human beings is an abhorrent human rights abuse and a serious crime that demands a more comprehensive and co-ordinated response from participating States and the international community, as well as a more coherent and co-operative approach among countries, in particular those of origin, transit and des- tination;

2. Welcomes the adoption, by the United Nations General Assembly, of the Protocol to Prevent, Suppress and Punish Trafficking in Persons, especially Women and Chil- dren, supplementing the United Nations Convention against Transnational Organized Crime as well as the definition of trafficking in persons contained therein and calls upon all participating States to sign and ratify the United Nations Protocol as well as the Optional Protocol to the Convention on the Rights of the Child, on the Sale of Chil- dren, Child Prostitution and Child Pornography;

3. Recognizes the primary responsibility of participating States in combating trafficking based on an integrated and co-ordinated approach which includes prevention of traf- ficking, protection of victims and prosecution of traffickers and their accomplices;

4. Stresses the role of national parliaments in the enactment, among others, of laws nec- essary to combat trafficking in human beings and welcomes articles 106 and 107 of the Parliamentary Assembly’s Bucharest Declaration on trafficking in persons;

5. Agrees to strengthen the activities of the OSCE to combat trafficking and empha- sizes the need for intensified co-operation between different OSCE institutions as well

OSCE Human Dimension Commitments 211 Specific Threats to Human Security pa rt II

as between the OSCE and other international organizations, such as relevant United Nations agencies, the International Organization for Migration, the Council of Europe, the European Union and Interpol;

6. Supports the work of the Stability Pact Task Force on Trafficking in Human Beings and calls in particular for the governments of the region concerned to play an active role in the Task Force;

(…)

8. Undertakes to raise awareness, including with assistance from the ODIHR, non-gov- ernmental organizations and other relevant institutions, through, where necessary, establishing training programmes among public officials, including law enforcement, judiciary, consular and immigration officials, about all aspects of trafficking;

9. Commits to take necessary measures, including by adopting and implementing legis- lation, to criminalize trafficking in human beings, including appropriate penalties, with a view to ensuring effective law enforcement response and prosecution. Such legislation should take into account a human rights approach to the problem of trafficking, and include provision for the protection of the human rights of victims, ensuring that vic- tims of trafficking do not face prosecution solely because they have been trafficked;

11. Encourages the nomination, where appropriate, of governmental representatives on trafficking to co-ordinate national activities and to ensure regional and international co-operation and to make this contact information available to other participating States;

(…)

Bucharest 2001 (Decisions: Decision No. 6) The Ministerial Council,

Reiterating its commitment to combat all forms of trafficking in human beings, which affects all participating States,

Affirming its commitment to developing co-operation and interaction among partici- pating States on anti-trafficking measures and related crimes,

Calls on participating States to sign and ratify the United Nations Convention against Transnational Organized Crime, and its Protocol to Prevent, Suppress and Punish Traf- ficking in Persons, especially Women and Children;

(…)

Encourages information exchange with a view to strengthening investigation, law enforcement and crime prevention;

212 OSCE Human Dimension Commitments pa rt II Prevention of Trafficking in Human Beings

Calls on participating States to accelerate taking the necessary measures to fulfil their Vienna ministerial commitments which include prevention of trafficking, protection of victims and prosecution of traffickers and their accomplices.

Porto 2002 (Declaration on Trafficking in Human Beings) I.

We, the members of the Ministerial Council of the OSCE, declare that trafficking in human beings represents a dangerous threat to security in the OSCE area and beyond.

We declare that trafficking in human beings and other modern forms of slavery consti- tute an abhorrent violation of the dignity and rights of human beings.

We recognize that trafficking in human beings represents a serious and rapidly expand- ing area of transnational organized crime, generating huge profits for criminal networks that may also be associated with criminal acts such as trafficking in drugs and arms, as well as smuggling of migrants.

We recall and reaffirm our full adherence to the OSCE’s commitments to combating trafficking in human beings (…) and declare our determination to strengthen co-oper- ation in addressing trafficking in human beings in countries of origin, transit and des- tination.

(…) We declare that ratification and full implementation of both these instruments [United Nations Convention Against Transnational Organized Crime and to its sup- plementary Protocol to Prevent, Suppress and Punish Trafficking in Persons, especially Women and Children] would enhance the international and national legal framework and enforcement capacities for combating trafficking in human beings. We strongly encourage States to consider concurrent ratification and full implementation of the Protocol Against the Smuggling of Migrants by Land, Sea and Air, also supplementing the above-mentioned Convention (…)

We recognize the need to address root causes of trafficking and to reduce the economic and social inequalities and disadvantages, which also provoke illegal migration, and which may be exploited by organized criminal networks for their profit. We also recog- nize the need to fight corruption, which facilitates the operation of such networks. (…)

We recognize that, in countries of destination, demand for the activities of persons traf- ficked for the purposes of sexual exploitation, forced labour, slavery or other practices similar to slavery is an integral factor in trafficking in human beings. We urge countries of destination to take measures to effectively address such a demand as a key element in their strategy for effectively preventing and combating trafficking in human beings, and to exercise zero tolerance towards sexual exploitation, slavery and all forms of exploita- tion of forced labour, irrespective of its nature.

We are deeply concerned about reports of involvement by some mission members of international organizations in activities related to trafficking in human beings, par-

OSCE Human Dimension Commitments 213 Specific Threats to Human Security pa rt II

ticularly in post-conflict countries. We reiterate the importance of Permanent Coun- cil Decision No. 426, of 12 July 2001, on trafficking in human beings and encourage the adoption and implementation of relevant measures such as the ‘OSCE Code of Conduct for Mission Members.’ We will not tolerate international staff members being involved in any illegal activities, inciting this criminal trade or behaving in contravention of this Code of Conduct. We commit ourselves to take all practicable measures to ensure the accountability of international staff members to their respective national, and when appropriate local, authorities for such activities.

We express our concern about the increase in trafficking in minors and, recognizing the special needs of children, we support more research and exchange of information on trafficking in children and, with due regard to the best interest of the child as the pri- mary consideration in all actions concerning children, call for the elaboration of special measures to protect trafficked minors from further exploitation, mindful of their psy- chological and physical well-being.

We will strive for adequate measures to prevent trafficking in human beings in our countries, taking the form, inter alia, of target-oriented awareness raising campaigns and education in countries of origin and transit, directed in particular towards youth and other vulnerable groups, and will seek to develop appropriate campaigns in coun- tries of destination, to organize training for relevant officials and government employ- ees in the areas of law enforcement, border control, criminal justice and social services, and to recommend full co-operation with NGOs in this field.

(…)

We reiterate the need for national strategies in order to unite efforts directed towards combating trafficking in human beings and to enhance co-ordination among national, international and regional organizations in this field. This need could be met through measures such as appointing inter-ministerial bodies and national co-ordinators or, as appropriate, other relevant bodies or mechanisms.

III.

We agree to intensify co-operation, based on a multidimensional approach, among the relevant OSCE structures and institutions, as well as among the OSCE and other rele- vant international organizations and actors, including the United Nations and its spe- cialized agencies, the Council of Europe, the European Union and the International Organization for Migration, and task the Permanent Council with examining how bet- ter to assure such a co-operation with a view to combating trafficking in human beings. (…)

Maastricht 2003 (Decisions: Decision No. 2/03 on Combating Trafficking in Human Beings) The Ministerial Council,

(…)

214 OSCE Human Dimension Commitments pa rt II Prevention of Trafficking in Human Beings

1. Decides to endorse the OSCE Action Plan to Combat Trafficking in Human Beings as annexed to this Decision; and

2. Establishes, under the aegis of the Permanent Council, an OSCE mechanism to provide assistance to participating States to combat trafficking in human beings. The mechanism will consist of two parts, complementing the activities of each other: a Spe- cial Representative appointed by the Chairmanship-in-Office, and a special unit in the OSCE Secretariat (…)

Maastricht 2003 (Decisions: Annex to Decision No. 2/03 on Combating Trafficking in Human Beings; OSCE Action Plan to Combat Trafficking in Human Beings) IV. Prevention of trafficking in human beings

(…)

1. Data collection and research

1.1 Collecting separate data related to women, men and children victims of trafficking, and improving research into and analysis of subjects such as the character and scale of THB and the trafficking and exploitation mechanisms deployed by the organized crimi- nal groups, in order to develop effective and well-targeted prevention measures on traf- ficking in human beings. Promoting more research and exchange of information on trafficking in children.

1.2 Identifying the most vulnerable segments of the population and developing specially designed awareness-raising campaigns for them.

1.3 Conducting more far-reaching analysis of the root causes of THB, its demand and supply factors, its networks and its economic consequences, and its link with illegal migration.

2. Border measures

2.1 Without prejudice to international commitments in relation to the free movement of people, strengthening, to the extent possible, border controls as may be necessary to prevent and detect THB.

2.2 Adopting legislative or other appropriate measures to prevent, as far as possible, means of transport operated by commercial carriers from being used in committing offences, as defined by the provisions against trafficking.

2.3 Where appropriate, and without prejudice to applicable international conventions, obliging commercial carriers, including any transportation company or the owner or operator of any means of transport, to ascertain that all passengers are in possession of valid travel documents. In accordance with domestic law, taking the necessary meas- ures to provide for sanctions in case of violation.

3. Economic and social policies aimed at addressing root causes of THB

OSCE Human Dimension Commitments 215 Specific Threats to Human Security pa rt II

3.1 In countries of origin:

• Considering as priority goals: the fostering of social-economic and political stability, and the reduction both of migration caused by deep poverty and of supply factors of trafficking. Policies followed in pursuit of these goals should also promote both eco- nomic development and social inclusion;

• Improving children’s access to educational and vocational opportunities and increas- ing the level of school attendance, in particular by girls and minority groups;

• Enhancing job opportunities for women by facilitating business opportunities for small and medium-sized enterprises (SMEs). Organizing SMEs training courses, and targeting them particularly at high-risk groups.

3.2 In countries of destination:

• Implementing measures to reduce “the invisibility of exploitation”. A multi-agency programme of monitoring, administrative controls and intelligence gathering on the labour markets, and, where applicable, on the sex industry, will contribute greatly to this objective;

• Considering the liberalization by governments of their labour markets with a view to increasing employment opportunities for workers with a wide range of skills levels;

• Addressing the problem of unprotected, informal and often illegal labour, with a view to seeking a balance between the demand for inexpensive labour and the possibilities of regular migration;

• Tackling underground economic activities which undermine economies and enhance trafficking.

3.3 Whether in countries of origin or countries of destination:

• Taking measures to raise levels of social protection and to create employment oppor- tunities for all;

• Taking appropriate measures to eliminate discrimination against women in the field of employment in order to ensure, on a basis of gender equality, the right to equal pay for equal work and the right to equality in employment opportunities;

• Addressing all forms of discrimination against minorities;

• Developing programmes that offer livelihood options and include basic education, lit- eracy, communication and other skills, and reduce barriers to entrepreneurship;

• Encouraging gender sensitization and education on equal and respectful relationships between the sexes, thus preventing violence against women;

216 OSCE Human Dimension Commitments pa rt II Prevention of Trafficking in Human Beings

• Ensuring that policies are in place which allow women equal access to and control over economic and financial resources;

• Promoting flexible financing and access to credit, including micro-credit with low interest;

• Promoting good governance and transparency in economic transactions;

• Adopting or strengthening legislative, educational, social, cultural or other measures, and, where applicable, penal legislation, including through bilateral and multilateral co-operation, to discourage the demand that fosters all forms of exploitation of per- sons, especially women and children, and that leads to trafficking.

4. Awareness-raising

4.1 Undertaking, in co-operation with civil society and NGOs, information campaigns to generate public awareness about trafficking in its various forms, including the meth- ods employed by traffickers and the risks to victims.

4.2 Increasing awareness about trafficking among immigration authorities and consular and diplomatic personnel so that they use this knowledge in their daily contacts with potential victims.

4.3 Encouraging national embassies to disseminate information on relevant national legislation such as family law, labour law and immigration law as is of interest to poten- tial migrants, including through NGOs.

4.4 Increasing awareness of other relevant target groups, including policy makers, law enforcement officers, and other relevant professionals such as medical, social services and employment officials, and in the private sector, to THB, to enhance their readiness to address it adequately and to strengthen their institutional capacity to counter it.

4.5 Encouraging the consular and visa sections of the diplomatic missions to use printed and other materials in their work with at-risk individuals.

4.6 Raising awareness of the media. The perception of the problem of trafficking in human beings brought forward by the media should include a clear explanation of the phenomenon and a realistic portrayal of the victims. To maximize public knowledge and awareness, anti-trafficking campaigns should be conducted with media profession- als.

4.7 Targeting awareness-raising campaigns also at the most vulnerable groups, includ- ing persons belonging to national minorities, children, migrants and internally dis- placed persons (IDPs).

4.8 Extending awareness-raising campaigns to smaller towns and villages whose popu- lations may be at particular risk.

OSCE Human Dimension Commitments 217 Specific Threats to Human Security pa rt II

4.9 Working in schools and universities as well as directly with families to reach young people and to raise their awareness about trafficking.

4.10 Addressing, also through the media, the need to reduce the demand for the activ- ities of persons trafficked for sexual exploitation, forced labour, slavery or other prac- tices similar to slavery and, in this connection, promoting zero tolerance towards all forms of trafficking.

4.11 Establishing well-publicized telephone “hotlines” in the countries of origin, transit and destination, which should serve three purposes: to act as an independent source of advice and guidance to potential victims who may be considering job opportunities or other offers to go abroad, to act as a first point of contact providing access to a referral mechanism for victims of THB, and, furthermore, to facilitate the anonymous report- ing of cases or suspected cases of THB.

5. Legislative measures

5.1 Adopting or reviewing laws, administrative controls and procedures relating to the licensing and operation of sectors of business that, according to intelligence, may be involved in trafficking, such as employment, tourist, au pair, adoption or mail-order bride agencies, as well as hotels and escort services.

5.2 Ensuring that measures adopted for the purpose of preventing and combating traf- ficking in persons do not have an adverse impact on the rights and dignity of persons, including their freedom of movement.

(…)

VI. Follow-up and co-ordinating mechanisms

Besides monitoring the implementation of the OSCE commitments by participating States through existing OSCE mechanisms, including the annual Human Dimension Implementation Meeting, Review Conferences and relevant human dimension events, The Permanent Council recommends the following actions at the national level:

1. To consider appointing National Rapporteurs or other mechanisms for monitoring the anti-trafficking activities of State institutions and the implementation of national legislation requirements;

2. To consider establishing Anti-Trafficking Commissions (task forces) or similar bod- ies responsible for co-ordinating activities within a country among State agencies and NGOs, and for elaborating measures to prevent THB, to punish perpetrators of THB and to protect its victims;

3. To improve co-operation between State institutions and national NGOs active in ren- dering protection and assistance to the victims of THB, combating violence against women and children, promoting gender equality and raising awareness in human rights issues;

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Sofia 2004 (Decisions: Decision No. 13/04 on the Special Needs for Child Victims of Trafficking for Protection and Assistance) The Ministerial Council,

(…)

Recalling the principles of protection and respect for human rights as reflected in the 1989 United Nations Convention on the Rights of the Child, and its related 2000 Optional Protocol on the Sale of Children, Child Prostitution and Child Pornography, the 2000 United Nations Protocol to Prevent, Suppress and Punish Trafficking in Per- sons, Especially Women and Children, supplementing the United Nations Convention against Transnational Organized Crime, as well as the 1993 Hague Convention on Pro- tection of Children and Co-operation in Respect of Intercountry Adoption,

Mindful of the primary responsibility of participating States in combating trafficking based on an integrated and co-ordinated approach which includes prevention of traf- ficking, protection of victims and prosecution of traffickers and their accomplices,

Reaffirming that the general principles of, inter alia, the best interests of the child, non- discrimination, participation and survival and development provide the framework for all actions concerning children,

Dedicated to further strengthening the efforts by the OSCE to combat trafficking in human beings, and to continue an active implementation of the Action Plan to Combat Trafficking in Human Beings, as well as to continue the Organization’s support to the participating States, on their request, in carrying out their respective national activities in this field,

Taking into account in particular the recommendations in the OSCE Action Plan to Combat Trafficking in Human Beings that the OSCE shall give special attention to the issue of trafficking in children, and also recognizing the vulnerability of unaccompa- nied and separated children,

Mindful that participating States are committed to protect children from all forms of violence, including sexual exploitation of children, and stressing the importance of respecting their special needs for protection and assistance, and the opportunity for the child to be heard,

Stressing that measures to combat trafficking in children should have a gender perspec- tive and be non-discriminatory,

Underlining that the best interests of the child shall be the primary consideration in decisions taken with regard to trafficked children, including through ensuring repre- sentation, as appropriate, for child victims,

Aware of the need for an effective child assistance and protection framework as well as awareness-raising to counter the demand that fosters all forms of exploitation of per-

OSCE Human Dimension Commitments 219 Specific Threats to Human Security pa rt II

sons, especially women and children, and which makes children more vulnerable to being trafficked,

1. Decides to enhance OSCE efforts aimed at preventing children from being trafficked, protecting and assisting child victims of trafficking, and prosecuting those who traf- fic in children, taking into account the OSCE Action Plan to Combat Trafficking in Human Beings;

2. Encourages participating States to strengthen relevant governmental structures for children. Also encourages participating States to intensify actions, as appropriate, in line with the relevant recommendations for participating States in the OSCE Action Plan on Combating Trafficking in Human Beings to counter factors which contribute to making children particularly vulnerable to trafficking in human beings including: dis- crimination, based, inter alia, on race, sex, religion or belief, national or social origin, birth or other status; exploitation, as defined in the OSCE Action Plan on Combating Trafficking in Human Beings; poverty; lack of education and displacement;

3. Agrees to strengthen countering demand, including combating child sex tourism. In this context, also invites the participating States to consider, inter alia, elaboration of legal measures aimed at prosecution of their citizens for the sexual exploitation of chil- dren, including if such exploitation has taken place in another country (…)

6.2.2 Investigation, Law Enforcement, and Prosecution Istanbul 1999 (Charter for European Security: III. Our Common Response) 24. We will undertake measures to (…) end (…) all forms of trafficking in human beings. In order to prevent such crimes we will, among other means, promote the adoption or strengthening of legislation to hold accountable persons responsible for these acts (…)

Vienna 2000 (Decisions: Decision on Enhancing the OSCE’s Efforts to Combat Trafficking in Human Beings) The Ministerial Council,

(…)

3. Recognizes the primary responsibility of participating States in combating traffick- ing based on an integrated and co-ordinated approach which includes (…) prosecution of traffickers and their accomplices;

(…)

9. Commits to take necessary measures, including by adopting and implementing legis- lation, to criminalize trafficking in human beings, including appropriate penalties, with a view to ensuring effective law enforcement response and prosecution. Such legislation should take into account a human rights approach to the problem of trafficking, and include provision for the protection of the human rights of victims, ensuring that vic- tims of trafficking do not face prosecution solely because they have been trafficked;

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Bucharest 2001 (Decisions: Decision No. 6) The Ministerial Council,

(…)

Encourages information exchange with a view to strengthening investigation, law enforcement and crime prevention;

Porto 2002 (Declaration on Trafficking in Human Beings) We call on participating States to enhance international co-operation in combating transnational organized crime, including criminal acts such as trafficking in drugs and arms, as well as smuggling of migrants. Such co-operation should include international law enforcement bodies, such as Europol and Interpol, as well as the Southeast Euro- pean Co-operative Initiative (SECI), with a view to investigating and prosecuting those responsible for trafficking in human beings in accordance with domestic law and, where applicable, international obligations (…)

Maastricht 2003 (Decisions: Annex to Decision No. 2/03 on Combating Trafficking in Human Beings; OSCE Action Plan to Combat Trafficking in Human Beings) III. Investigation, law enforcement and prosecution

(…)

Recommended action at the national level

1. Criminalization

1.1 Adopting such legislative and other measures as may be necessary to establish as criminal offences the conduct set forth in Article 3 of the United Nations Protocol to Prevent, Suppress and Punish Trafficking in Persons, especially Women and Chil- dren, supplementing the United Nations Convention against Transnational Organized Crime.

1.2 Adopting such legislative and other measures as may be necessary to establish as criminal offences:

• Attempting to commit this criminal offence;

• Participating as an accomplice in this criminal offence;

• Organizing or directing other persons to commit this criminal offence.

1.3 Adopting such measures as may be necessary to establish the liability of legal per- sons for trafficking offences in addition to the liability of natural persons. Subject to the legal principles of the participating State, the liability of legal persons may be criminal, civil and/or administrative.

OSCE Human Dimension Commitments 221 Specific Threats to Human Security pa rt II

1.4 Making legislative provisions for effective and proportionate criminal penalties, including imprisonment, that take into account the serious nature of this crime. Where appropriate, legislation should provide for additional penalties to be applied to persons found guilty of trafficking in aggravating circumstances, such as in the case of offences involving trafficking in children or offences committed by or involving the complicity of State officials.

1.5 Considering legislative provisions for confiscation of the instruments and proceeds of trafficking and related offences, specifying, where not inconsistent with national leg- islation, that the confiscated proceeds of trafficking will be used for the benefit of vic- tims of trafficking. Giving consideration to the establishment of a compensation fund for victims of trafficking and the use of the confiscated assets to help finance such a fund.

1.6 Ensuring that trafficking, its constitutive acts and related offences constitute extra- ditable offences under national law and extradition treaties.

1.7 Adopting such legislative and other measures to establish as criminal offences acts of active or passive corruption of public officials, as referred to in Articles 8 and 9 of the United Nations Convention against Transnational Organized Crime.

1.8 Ensuring that victims of trafficking are not subject to criminal proceedings solely as a direct result of them having been trafficked.

2. Law enforcement response

2.1 Fully implementing anti-trafficking and related measures set out in legislation.

2.2 Establishing special anti-trafficking units — comprising both women and men — with advanced training in investigating offences involving sexual assault or involving children, in order to promote competence, professionalism and integrity.

2.3 Building capacity in the anti-corruption field.

2.4 Developing community-policing programmes: raising levels of trust between the police and the public in order, inter alia, to contribute to the acquisition of information relating to trafficking and to increase the willingness of victims to report offences.

2.5 Enhancing co-operation between law enforcement investigating bodies in order to establish the possibly criminal, trafficking-related origins of suspicious assets.

2.6 Providing not only the resources and training for developing intelligence-led polic- ing for the management and analysis of crime and criminal information, but also the other advanced skills and equipment necessary for law enforcement bodies to carry out their anti-trafficking tasks.

2.7 Encouraging investigators and prosecutors to carry out investigations and prose- cutions without relying solely and exclusively on witness testimony. Exploring alterna-

222 OSCE Human Dimension Commitments pa rt II Prevention of Trafficking in Human Beings

tive investigative strategies to preclude the need for victims to be required to testify in court.

2.8 Taking practicable measures to ensure that OSCE mission members who are behav- ing in breach of the OSCE Code of Conduct for Mission Members and other regulations face prescribed sanctions, including, as appropriate, disciplinary and criminal proceed- ings.

2.9 Targeting corruption of local law enforcement as a matter of priority, and ensur- ing that appropriate disciplinary and criminal proceedings are undertaken against law enforcement authorities found to be engaged in corrupt practices related to trafficking in human beings.

3. Law enforcement co-operation and information exchange between participating States

3.1 Co-operating closely with one another and consistent with their respective domes- tic legal and administrative systems, to enhance the effectiveness of law enforcement action in combating the offences covered by this Action Plan. Promoting similar co- operation and co-ordination between law enforcement agencies within States.

3.2 Adopting, in particular, effective measures

• To enhance and where necessary to establish channels of communication between participating States;

• To co-operate on inquiries regarding offences covered by this Action Plan;

• To provide, when appropriate, items or evidence necessary for analytical or investiga- tive purposes;

• To facilitate effective co-ordination between their competent authorities, agencies and services and to promote the exchange of personnel and other experts, including, sub- ject to bilateral agreements or arrangements between the participating States con- cerned, the posting of liaison officers;

• To exchange information on specific means and methods used by organized criminal groups, including, where applicable, routes and conveyances and the use of false iden- tities, altered or forged documents or other means of concealing their activities;

• To co-ordinate administrative and other measures considered appropriate for the early identification of the offences covered by this Action Plan.

3.3 Concluding agreements on bilateral and multilateral law enforcement co-operation to facilitate exchange of information.

3.4 Undertaking efforts to develop common standards for the collection of statistical data.

OSCE Human Dimension Commitments 223 Specific Threats to Human Security pa rt II

4. Assistance and protection of witnesses and victims in the criminal justice system

4.1 Taking appropriate measures within participating States’ means, including legisla- tive ones, to provide effective protection from potential retaliation or intimidation for witnesses in criminal proceedings who give testimony concerning offences covered by this Action Plan and, as appropriate, for their relatives and other persons close to them.

4.2 Sensitizing law enforcement authorities and officials to their responsibility for ensuring the safety and immediate well-being of victims of THB.

4.3 Ensuring data protection and the victim’s right to privacy, also in the course of data collection and analysis.

4.4 Facilitating the victim’s participation as a witness in the investigation and court hearings or other criminal proceedings by providing him/her with the possibility of relocation as a form of witness protection.

4.5 Providing legal counselling for victims when they are in the process of deciding whether or not to testify in court.

4.6 Permitting NGOs to support victims in court hearings, if it is not inconsistent with national legislation.

5. Training

5.1 Providing or improving training for border officials, law enforcement officials, judges, prosecutors, immigration and other relevant officials in all aspects of traffick- ing in persons.

5.2 Giving, in such training programs, consideration to human rights and child-and gender-sensitive issues, and encouraging co-operation with non-governmental organi- zations, other relevant organizations and other elements of civil society.

6. Border measures

6.1 Considering taking measures that permit, in accordance with its domestic law, the denial of entry, the revocation of visas or possibly the temporary detention of persons implicated in committing offences as defined by the legislation in force.

6.2 Considering strengthening co-operation among border control agencies by, inter alia, establishing and maintaining direct channels of communication.

7. Security and control of documents

7.1 Taking such measures as may be necessary, within available means, to ensure that travel or identity documents issued by or on behalf of participating States are of such quality that they cannot easily be misused, readily falsified or unlawfully altered, repli- cated or issued.

224 OSCE Human Dimension Commitments pa rt II Prevention of Trafficking in Human Beings

8. Legitimacy and validity of documents

8.1 At the request of another participating State and in accordance with its domestic law, verifying within a reasonable time the legitimacy and validity of travel or identity documents issued or purporting to have been issued in its name, where there are rea- sonable grounds to suspect their usage for trafficking in persons.

Sofia 2004 (Decisions: Decision No. 13/04 on the Special Needs for Child Victims of Trafficking for Protection and Assistance) The Ministerial Council,

(…)

1. Decides to enhance OSCE efforts aimed at preventing children from being trafficked, (…) and prosecuting those who traffic in children

(…)

3. Agrees to strengthen countering demand, including combating child sex tourism. In this context, also invites the participating States to consider, inter alia, elaboration of legal measures aimed at prosecution of their citizens for the sexual exploitation of chil- dren, including if such exploitation has taken place in another country (…)

6.2.3 Protection of Victims and Provision of Assistance Istanbul 1999 (Charter for European Security: III. Our Common Response) 24. We will undertake measures to (…) end violence against women and children as well as sexual exploitation and all forms of trafficking in human beings. In order to prevent such crimes we will, among other means (…) strengthen the protection of victims.

Vienna 2000 (Decisions: Decision on Enhancing the OSCE’S Efforts to Combat Trafficking in Human Beings) The Ministerial Council,

(…)

3. Recognizes the primary responsibility of participating States in combating traffick- ing based on an integrated and co-ordinated approach which includes (…) protection of victims (…)

(…)

9. Commits to take necessary measures, including by adopting and implementing legis- lation, to criminalize trafficking in human beings (…) Such legislation should take into account a human rights approach to the problem of trafficking, and include provision for the protection of the human rights of victims, ensuring that victims of trafficking do not face prosecution solely because they have been trafficked;

OSCE Human Dimension Commitments 225 Specific Threats to Human Security pa rt II

10. Will consider adopting legislative or other appropriate measures, such as shelters, which permit victims of trafficking in persons to remain in their territories, temporar- ily or permanently, in appropriate cases; and establishing appropriate repatriation proc- esses for the victims of trafficking, with due regard to their safety, including the provi- sion of documents; and developing policies concerning the provision of economic and social benefits to victims as well as their rehabilitation and reintegration in society;

Porto 2002 (Declaration on Trafficking in Human Beings) We will strive to render assistance and protection to the victims of trafficking, espe- cially women and children, and to this end, when appropriate, to establish effective and inclusive national referral mechanisms, ensuring that victims of trafficking do not face prosecution solely because they have been trafficked. The dignity and human rights of victims must be respected at all times (…)

We recognize that intensified co-operation among relevant actors in countries of ori- gin, transit and destination plays a critical role in the return programmes for victims of trafficking and facilitates their reintegration. Therefore, we encourage all organizations providing assistance to victims, including NGOs, to further develop such co-operation.

We will consider adopting legislative or other measures that permit victims of traffick- ing to remain in our territory, temporarily or permanently, in appropriate cases, and giving consideration to humanitarian and compassionate factors.

Maastricht 2003 (Decisions: Annex to Decision No. 2/03 on Combating Trafficking in Human Beings; OSCE Action Plan to Combat Trafficking in Human Beings) V. Protection and assistance

(…)

1. Data collection and research

1.1 Collecting data through the exchange and analysis of best practices and other infor- mation regarding effective protection of and assistance to victims of trafficking in the OSCE participating States.

2. Legislative measures

2.1 Considering the need for adopting legislation which will provide the legal basis for rendering assistance and protection to victims of THB, especially during pre-trial inves- tigations and in court proceedings.

2.2 Ratifying, or acceding to, and fully implementing the United Nations Protocol to Prevent, Suppress and Punish Trafficking in Persons, especially Women and Chil- dren, supplementing the United Nations Convention against Transnational Organized Crime.

226 OSCE Human Dimension Commitments pa rt II Prevention of Trafficking in Human Beings

3. National Referral Mechanisms (NRM)*

3.1 Establishing National Referral Mechanisms by creating a co-operative framework within which participating States fulfil their obligations to protect and promote the human rights of the victims of THB in co-ordination and strategic partnership with civil society and other actors working in this field.

3.2 Providing guidance to facilitate the accurate identification and appropriate treat- ment of the victims of THB, in ways which respect the views and dignity of the persons concerned.

3.3 Combining the efforts of law-enforcement bodies, including specially established anti-trafficking units and police at local level, officials of migration and border services, social protection units, medical institutions, as well as NGOs and other civil society institutions as the most relevant actors to be involved in NRM activities.

3.4 Establishing appropriate mechanisms to harmonize victim assistance with investi- gative and prosecutorial efforts.

3.5 Drawing special attention to the need for enhanced co-operation between the police and NGOs in identifying, informing and protecting victims of THB.

3.6 Linking the activities of NRMs with those of inter-ministerial bodies, national co- ordinators, NGOs and other relevant national institutions to form a cross-sectoral and multidisciplinary team capable of developing and monitoring the implementation of anti-trafficking policies.

4. Shelters

4.1 Establishing shelters, run by governmental bodies, NGOs, or other institutions of civil society to meet the needs of trafficked persons; these shelters are to provide safety, access to independent advice and counselling in a language known by the victim, first- hand medical assistance, and an opportunity for reflection delay after the experienced trauma. Shelters may be established on the basis of already existing facilities such as crisis centres for women.

4.2 Providing access to shelters for all victims of trafficking, regardless of their readi- ness to co-operate with authorities in investigations.

4.3 Giving special attention to ensuring security for personnel of such shelters, confi- dentiality of information obtained, and safety and privacy for victims of THB.

4.4 Using shelters to provide the kind of training opportunities for victims of THB which will facilitate their future reintegration, employment and independence, as well as improving their competitive capabilities after the experienced trauma.

* The ODIHR’s [National Referral Mechanisms: A Practical Handbook] may serve as a useful source of advice and information regarding the role of NRMs in rendering assistance and protection to victims of THB).

OSCE Human Dimension Commitments 227 Specific Threats to Human Security pa rt II

5. Provision of documents

5.1 Ensuring provision of documents, if necessary, as a first step to clarifying the vic- tim’s identity and status in countries of destination, thus making it possible to proceed with options of assistance in appropriate cases, such as repatriation, preferably volun- tary, provision of a temporary or permanent residence permit, and/or legalization of employment.

5.2 Enhancing co-operation amongst law enforcement bodies in the countries of origin, transit and destination, and responsible officials of all institutions involved in the resto- ration of rights of victims of THB, including the personnel of embassies and consulates of participating States in order to facilitate the speedy verification of personal data and the avoidance of undue or unreasonable delay.

5.3 Informing identified victims of THB of their right to access to diplomatic and con- sular representatives of their country of nationality.

6. Provision of social assistance

6.1 Developing social assistance and integration programmes, including legal counsel- ling in a language known by the victim, medical and psychological assistance and access to health care, to be made available either in shelters or other relevant institutions.

6.2 Considering, where not inconsistent with national legislation, legal measures to allow confiscated assets to be used to supplement government funding for programmes that address the needs of victims of THB and to compensate the victims in accordance with the gravity of the crime committed against them.

7. Repatriation, rehabilitation and reintegration

7.1 Assisting the victims of THB in — preferably — voluntary repatriation to the coun- try of origin with due regard for their safety and that of their families, and without undue or unreasonable delay.

7.2 Ensuring due process in all return and removal proceedings, taking into account a humanitarian and compassionate approach.

7.3 Considering contributing to the rehabilitation and social reintegration of victims of THB by providing them with social and economic benefits.

7.4 Raising media awareness of the need to safeguard privacy by avoiding public disclo- sure of the identity of victims of THB, or publication of confidential information inimi- cal to victims’ security or to the cause of justice in criminal proceedings.

8. Provision of a reflection delay and temporary or permanent residence permits

8.1 Considering the introduction of a reflection delay to give the victim due time to decide whether or not to act as a witness.

228 OSCE Human Dimension Commitments pa rt II Prevention of Trafficking in Human Beings

8.2 Considering on a case-by-case basis, if appropriate, the provision of temporary or permanent residence permits, taking into account such factors as potential dangers to victims’ safety.

8.3 Considering, if appropriate, the provision of work permits to victims during their stay in the receiving country.

9. Ensuring the right to apply for asylum

9.1 Ensuring that anti-trafficking laws, policies, programmes and interventions do not affect the right of all persons, including victims of THB, to seek and enjoy asylum from persecution in accordance with international refugee law, in particular through effec- tive application of the principle of non-refoulement.

10. Protection of children

10.1 Ensuring that the special needs of children and the best interests of the child are fully taken into account when deciding upon appropriate housing, education and care. In appropriate cases, if there is no direct threat to the safety of the child, providing the children with access to the State educational system.

10.2 Deciding on the repatriation of a child victim of THB only after having taken account of all the circumstances of the specific case and if there is a family or special institution in the country of origin to ensure the child’s safety, protection, rehabilitation and reintegration.

10.3 Considering the provisions outlined in the United Nations High Commissioner for Refugees Guidelines for the Protection of Unaccompanied Minors when elaborating policies targeted at this risk group, and in particular for those who are not in possession of identification documents.

10.4 Using bilateral and/or regional agreements on fundamental principles of good reception of unaccompanied children in order to combine efforts targeted at the pro- tection of children.

10.5 Ratifying or acceding to, and fully implementing, the Optional Protocol to the Convention on the Rights of the Child, on the Sale of Children, Child Prostitution and Child Pornography.

11. National Referral Mechanism

11.1 Enhancing the activities of the OSCE, especially the ODIHR, in assisting partici- pating States, upon their request, in establishing the NRM.

11.2 Tasking the OSCE Strategic Police Matters Unit, together with the ODIHR, with the further development of guidelines or a manual on the identification of suspected victims and of evidence of THB, in order to assist participating States, as appropriate.

OSCE Human Dimension Commitments 229 Specific Threats to Human Security pa rt II

(…)

14. Training

(…)

14.2 Tasking the ODIHR with the collection and dissemination of information on measures, training programmes and materials already in place in OSCE participating States.

15. Legislative measures

15.1 In co-ordination with the United Nations Office on Drugs and Crime, the Coun- cil of Europe and other relevant actors, the ODIHR will continue to assist participat- ing States, upon their request, in bringing their national legislation into compliance with international norms and standards, particularly by promoting a humanitarian and compassionate approach to the victims of THB.

Sofia 2004 (Decisions: Decision No. 13/04 on the Special Needs for Child Victims of Trafficking for Protection and Assistance) The Ministerial Council,

(…)

1. Decides to enhance OSCE efforts aimed at preventing children from being trafficked, protecting and assisting child victims of trafficking (…)

6.3 Prevention of Illicit Trafficking in Drugs and Arms, and Other Forms of International Organized Crime

See also: á Part II. 6.2: Prevention of Trafficking in Human Beings á Part II. 6.4: Prevention of Terrorism

Paris 1990 (A New Era of Democracy, Peace and Unity) We will (…) join together in combating illicit trafficking in drugs.

Helsinki 1992 (Summit Declaration) 27. Illicit trafficking in drugs represents a danger to the stability of our societies and democratic institutions. We will act together to strengthen all forms of bilateral and multilateral co-operation in the fight against illicit trafficking in drugs and other forms of international organized crime.

Bucharest 2001 (Ministerial Declaration) 4. (…) Organized crime, illicit traffic in drugs and arms, and trafficking in human beings, affect the security, economy and social structure of all participating States. The

230 OSCE Human Dimension Commitments pa rt II Prevention of Illicit Trafficking in Drugs and Arms, and Other Forms of International Organized Crime

Ministerial Council supports enhanced efforts and greater international co-operation to combat these challenges, and urges participating States who have not yet done so to become parties to the United Nations Convention Against Transnational Organized Crime and its Protocols.

Porto 2002 (Declaration on Trafficking in Human Beings) We call on participating States to enhance international co-operation in combating transnational organized crime, including criminal acts such as trafficking in drugs and arms, as well as smuggling of migrants. Such co-operation should include international law enforcement bodies, such as Europol and Interpol, as well as the Southeast Euro- pean Co-operative Initiative (SECI)

Maastricht 2003 (OSCE Strategy to Address Threats to Security and Stability in the Twenty-First Century) 31. The OSCE will step up its work to combat organized crime. Regular meetings of police experts from OSCE participating States and representatives of other relevant spe- cialized international and regional organizations would constitute an important contri- bution in this respect (…) The OSCE Document on SALW remains a key instrument for combating trafficking in and proliferation of SALW in all its aspects. Its implementation will be further strengthened. The OSCE will continue the collaborative efforts already underway with the UNODC to address the issue of illicit traffic in narcotic drugs. An effective and comprehensive international approach to dealing with this issue needs to be developed.

32. The Strategic Police Matters Unit was set up to improve the capacity of participat- ing States to address threats posed by criminal activity and to assist them in upholding the rule of law. The aim is to enhance key policing skills, including respect for human rights and fundamental freedoms. The OSCE will, at the request of participating States, increase its focus on assistance to authorities, including at the local level, on fighting crime and criminal networks and will define and develop core competencies for police activities such as training and capacity-building activities.

33. The OSCE will intensify its efforts to address such issues as smuggling of migrants and illegal migration.

34. A comprehensive and multidisciplinary approach is required to effectively pre- vent and combat corruption in all its forms. The OSCE, in close co-ordination with the UNODC and other relevant international organizations and financial institutions, will contribute to reducing corruption across the OSCE region.

35. Threats of terrorism and organized crime are often interlinked, and synergetic approaches to deal with them will be further explored. Cross-border movement of per- sons, resources and weapons as well as trafficking for the purpose of financing and pro- viding logistic support play an increasing role for terrorist activities. The OSCE is com- mitted to addressing these problems and to strengthening its capacities to promote

OSCE Human Dimension Commitments 231 Specific Threats to Human Security pa rt II

open and secure borders, inter alia, through the elaboration of an OSCE Border Secu- rity and Management Concept in order to enhance capacity building and mutually ben- eficial inter-State co-operation.

6.4 Prevention of Terrorism

6.4.1 Condemnation of, and Commitment to Combat, Terrorism Madrid 1983 (Questions Relating to Security in Europe: Principles) (…)

The participating States condemn terrorism, including terrorism in international rela- tions, as endangering or taking innocent human lives or otherwise jeopardizing human rights and fundamental freedoms and emphasize the necessity to take resolute mea- sures to combat it.

They express their determination to take effective measures for the prevention and sup- pression of acts of terrorism, both at the national level and through international co- operation including appropriate bilateral and multilateral agreements, and accordingly to broaden and reinforce mutual co-operation to combat such acts. They agree to do so in conformity with the Charter of the United Nations, the United Nations Declara- tion on Principles of International Law concerning Friendly Relations and Co-operation among States and the Helsinki Final Act.

(…)

The participating States confirm that they will refrain from direct or indirect assistance to terrorist activities or to subversive or other activities directed towards the violent overthrow of the regime of another participating State. Accordingly, they will refrain, inter alia, from financing, encouraging, fomenting or tolerating any such activities.

Vienna 1989 (Questions Relating to Security in Europe: Principles) (8) The participating States unreservedly condemn, as criminal, all acts, methods and practices of terrorism, wherever and by whomever committed, including those which jeopardize friendly relations among States and their security, and agree that terrorism cannot be justified under any circumstances.

(9) They express their determination to work for the eradication of terrorism both bilat- erally and through multilateral co-operation, particularly in such international fora as the United Nations, the International Civil Aviation Organization and the International Maritime Organization and in accordance with the relevant provisions of the Final Act and the Madrid Concluding Document.

(10) Convinced of the need to combine measures at a national level with reinforced international co-operation, the participating States express their intention

232 OSCE Human Dimension Commitments pa rt II Prevention of Terrorism

(10.1) - to pursue a policy of firmness in response to terrorist demands;

(10.2) - to reinforce and develop bilateral and multilateral co-operation among them- selves in order to prevent and combat terrorism as well as to increase efficiency in exist- ing co-operation at the bilateral level or in the framework of groups of States including, as appropriate, through the exchange of information;

(…)

(10.4) - to take effective measures for the prevention and suppression of acts of terror- ism directed at diplomatic or consular representatives and against terrorism involving violations of the Vienna Conventions on Diplomatic and Consular Relations, in particu- lar their provisions relating to diplomatic and consular privileges and immunities;

(…)

(10.6) - to consider becoming parties, if they have not yet done so, to the relevant inter- national conventions relating to the suppression of acts of terrorism;

(10.7) - to continue to work in the appropriate international bodies in order to improve and extend measures against terrorism and to ensure that the relevant agreements are accepted and acted upon by as many States as possible.

Helsinki 1992 (Summit Declaration) 26. (…) We will encourage exchange of information concerning terrorist activities. We will seek further effective avenues for co-operation as appropriate. We will also take the necessary steps at a national level to fulfil our international obligations in this field.

Budapest 1994 (Decisions: IV. Code of Conduct on Politico-Military Aspects of Security) 6. The participating States will not support terrorist acts in any way and will take appro- priate measures to prevent and combat terrorism in all its forms. They will co-operate fully in combating the threat of terrorist activities through implementation of interna- tional instruments and commitments they agree upon in this respect (…)

Istanbul 1999 (Charter for European Security: I. Our Common Challenges) 4. International terrorism, violent extremism, organized crime and drug trafficking rep- resent growing challenges to security. Whatever its motives, terrorism in all its forms and manifestations is unacceptable...The excessive and destabilizing accumulation and uncontrolled spread of small arms and light weapons represent a threat to peace and security. We are committed to strengthening our protection against these new risks and challenges; strong democratic institutions and the rule of law are the foundation for this protection. We are also determined to co-operate more actively and closely with each other to meet these challenges.

OSCE Human Dimension Commitments 233 Specific Threats to Human Security pa rt II

Bucharest 2001 (Ministerial Declaration) 2. We resolutely condemn all acts of terrorism. Terrorism, whatever its motivation or origin, has no justification. No cause can justify the purposeful targeting of innocent people. In the fight against terrorism, there is no neutrality.

3. (…) We reiterate that the struggle against terrorism is not a war against religions or peoples (…)

Bucharest 2001 (Decision No. 1 on Combating Terrorism) The 55 participating States of the OSCE stand united against terrorism, a scourge of our times.

The OSCE participating States resolutely condemn the barbaric acts of terrorism that were committed against the United States on 11 September 2001. They represented an attack on the whole of the international community, and on people of every faith and culture. These heinous deeds, as well as other terrorist acts in all forms and manifesta- tions, committed no matter when, where or by whom, are a threat to international and regional peace, security and stability. There must be no safe haven for those perpetrat- ing, financing, harbouring or otherwise supporting those responsible for such criminal acts (…)

The OSCE participating States will not yield to terrorist threats, but will combat them by all means in accordance with their international commitments. This will require a long and sustained effort, but they take strength from their broad coalition, reaching from Vancouver to Vladivostok (…) They firmly reject identification of terrorism with any nationality or religion (…)

The OSCE participating States pledge to reinforce and develop bilateral and multilateral co-operation within the OSCE, with the United Nations and with other international and regional organizations, in order to combat terrorism in all its forms and manifesta- tions, wherever and by whomever committed. As a regional arrangement under Chapter VIII of the Charter of the United Nations, the OSCE is determined to contribute to the fulfilment of international obligations as enshrined, inter alia, in United Nations Secu- rity Council resolution 1373 (2001), and will act in conformity with the purposes and principles of the Charter of the United Nations. The OSCE participating States pledge to become parties to all 12 United Nations conventions and protocols related to terror- ism as soon as possible. They call for a speedy finalization of negotiations for a Compre- hensive United Nations Convention on International Terrorism.

(…)

(…) the OSCE Ministerial Council adopts The Bucharest Plan of Action for Combating Terrorism, annexed to this Decision.

234 OSCE Human Dimension Commitments pa rt II Prevention of Terrorism

Bucharest 2001 (Annex to Decision No. 1 on Combating Terrorism: The Bucharest Plan of Action for Combating Terrorism) I. Goal of the Action Plan

1. (…) The OSCE participating States commit their political will, resources and practi- cal means to the implementation of their obligations under existing international ter- rorism conventions (…)

II. International legal obligations and political commitments

4. (…) The widest and most comprehensive participation in and implementation of existing instruments and commitments to combat terrorism by the participating States must be pursued and ensured.

5. Participating States: Pledge themselves to apply efforts to become parties to all 12 United Nations conventions and protocols relating to terrorism, by 31 December, 2002, if possible, recognizing the important role that parliamentarians may play in ratifica- tion and other anti-terrorism legislative processes...Will participate constructively in the ongoing negotiations at the United Nations on a Comprehensive Convention against International Terrorism and an International Convention for the Suppression of Acts of Nuclear Terrorism, with a view to their early and successful conclusion.

(…)

7. Participating States: Will consider how the OSCE may draw upon best practices and lessons learned from other relevant groups, organizations, institutions and fora in areas such as police and judicial co-operation; prevention and suppression of the financing of terrorism; denial of other means of support; border controls including visa and docu- ment security; and access by law enforcement authorities to information.

8. The participating States will also use the Forum for Security Co-operation (FSC) to strengthen their efforts in combating terrorism through full and timely implementa- tion of all relevant measures agreed by the OSCE. To this end they will enhance imple- mentation of existing politico-military commitments and agreements, in particular the Code of Conduct on Politico-Military Aspects of Security and the Document on Small Arms and Light Weapons (SALW) (…)

III. Preventive action against terrorism in the OSCE area

(…)

11. Promoting human rights, tolerance and multi-culturalism: Participating States/Per- manent Council/ODIHR/High Commissioner on National Minorities (HCNM)/Rep- resentative on Freedom of the Media: Will promote and enhance tolerance, co-exist- ence and harmonious relations between ethnic, religious, linguistic and other groups as well as constructive co-operation among participating States in this regard. Will pro- vide early warning of and appropriate responses to violence, intolerance, extremism

OSCE Human Dimension Commitments 235 Specific Threats to Human Security pa rt II

and discrimination against these groups and, at the same time, promote their respect for the rule of law, democratic values and individual freedoms. Will work to ensure that persons belonging to national minorities have the right freely to express, preserve and develop their ethnic, cultural, linguistic or religious identity.

(…)

13. Addressing negative socio-economic factors: Participating States/Secretariat: Will aim to identify economic and environmental issues that undermine security, such as poor governance; corruption; illegal economic activity; high unemployment; wide- spread poverty and large disparities; demographic factors; and unsustainable use of natural resources (…)

14. Preventing violent conflict and promoting peaceful settlement of disputes: Draw- ing on all its capacities, the OSCE will continue and intensify work aimed at early warn- ing and appropriate response, conflict prevention, crisis management and post-conflict rehabilitation; will strengthen its ability to settle conflicts; will increase efforts to find lasting solutions to unresolved conflicts, including through promotion of the rule of law and crime prevention in such conflict zones through increased co-operation with the United Nations, the European Union and other international organizations; and will further develop its rapid deployment capability (REACT) in crisis situations.

15. Addressing the issue of protracted displacement: Participating States/ODIHR/ HCNM/Representative on Freedom of the Media: Will explore strengthened OSCE potential for contributing to durable solutions, supporting and closely co-operating with other relevant organizations, primarily the Office of the United Nations High Commis- sioner for Refugees. Will closely monitor situations of protracted displacement.

16. Strengthening national anti-terrorism legislation: Participating States: Will commit themselves to implementing all the obligations they have assumed under relevant con- ventions and protocols relating to terrorism as well as the United Nations Convention against Transnational Organized Crime and its additional protocols, sharing informa- tion and methods in this regard and considering ways and means of co-operation in implementation at bilateral, OSCE-wide and sub-regional meetings.

(…)

24. Suppressing the financing of terrorism. Participating States: Will, within the frame- work of the United Nations Convention on the Suppression of Financing of Terrorism and UNSCR 1373 (2001), take action to prevent and suppress the financing of terror- ism, criminalize the wilful provision or collection of funds for terrorist purposes, and freeze terrorist assets also bearing in mind UNSCR 1267 (1999). Will, in accordance with their domestic legislation and obligations under international law, provide early response to requests for information by another participating State and relevant inter- national organizations.

236 OSCE Human Dimension Commitments pa rt II Prevention of Terrorism

25. Participating States/Secretariat: (…) Will consider how the OSCE may contribute, within the framework of its work on transparency and the fight against corruption, to the wider international effort to combat terrorism. Will consider taking on a catalytic role in providing targeted projects for the training of the personnel of domestic finan- cial institutions in counter-terrorism areas, inter alia on monitoring of financial flows and on prevention of money laundering. Participating States will participate construc- tively in the forthcoming negotiations at the United Nations on a global instrument against corruption, with a view to their early and successful conclusion.

26. Preventing movement of terrorists: Participating States: Will prevent the movement of terrorist individuals or groups through effective border controls and controls on issu- ance of identity papers and travel documents, as well as through measures for ensuring the security of identity papers and travel documents and preventing their counterfeit- ing, forgery and fraudulent use. Will apply such control measures fully respecting their obligations under international refugee and human rights law. Will, through the proper application of the exclusion clauses contained in the 1951 Convention Relating to the Status of Refugees and its 1967 Protocol, ensure that asylum is not granted to persons who have participated in terrorist acts. Will provide for the timely detention and pros- ecution or extradition of persons charged with terrorist acts, in accordance with their obligations under international and national law.

IV. Action under the Platform for Co-operative Security - Co-operation with other organizations (…)

28. Participating States/Secretariat: Will strengthen co-operation and information exchanges, both formally and informally, with other relevant groups, organizations, and institutions involved in combating terrorism. Will strengthen co-operation with the European Union on analysis and early warning and reinforce synergy with the Stabil- ity Pact for South Eastern Europe and the Central European Initiative in areas relevant to combating terrorism. Will promote dialogue within the OSCE area on issues relating to new threats and challenges. Will broaden dialogue with partners outside the OSCE area, such as the Mediterranean Partners for Co-operation and Partners for Co-oper- ation in Asia, the Shanghai Co-operation Organization, the Conference on Interaction and Confidence-Building Measures in Asia, the Organization of the Islamic Confer- ence, the Arab League, the African Union, and those States bordering on the OSCE area to exchange best practices and lessons learned in counter-terrorism efforts for applica- tion within the OSCE area (…)

Bucharest 2001 (Decisions: Decision No. 9 on Police-Related Activities) The Ministerial Council,

(…)

Affirming that effective policing is essential to uphold the rule of law and to defend democratic institutions;

OSCE Human Dimension Commitments 237 Specific Threats to Human Security pa rt II

(…)

3. Decides to increase and promote co-operation among participating States in coun- tering new security challenges, including by:

• at the request of participating States and with their agreement (…) providing and co- ordinating OSCE police training, including at the subregional level, with a view to:

• improving operational and tactical policing capacities;

• enhancing key policing skills, including respect for human rights and fundamental freedoms, and, as appropriate, dealing with the criminal aspects of illegal migration; and,

• increasing community policing, anti-drug, anti-corruption and anti-terrorist capaci- ties; and,

• at the request of participating States and with their agreement: - providing advice or arranging for the provision of expert advice on requirements for effective policing (needs assessments) and how to meet them, (…) and,

• encouraging where appropriate the exchange of information among and between par- ticipating States regarding lessons learned and best policing practices in countering these new security challenges.

(…)

5. In keeping with the above undertakings, participating States commit to:

• enhance co-operation on police-related issues between and among themselves in order to address new risks and challenges to their security, both bilaterally and multi- laterally, and, where appropriate, through increased contacts between relevant bodies; and,

• share OSCE expertise and lessons learned in police-related activities with other rele- vant international organizations of which they are members with a view to more effec- tive international action to address these new risks and challenges to security.

Porto 2002 (Charter on Preventing and Combating Terrorism) The OSCE participating States, firmly committed to the joint fight against terrorism,

(…)

2. (…) reaffirm that action against terrorism is not aimed against any religion, nation or people;

(…)

238 OSCE Human Dimension Commitments pa rt II Prevention of Terrorism

4. Declare that acts, methods and practices of terrorism, as well as knowingly providing assistance to, acquiescing in, financing, planning and inciting such acts, are contrary to the purposes and principles of the United Nations and the OSCE;

5. Consider of utmost importance to complement the ongoing implementation of OSCE commitments on terrorism with a reaffirmation of the fundamental and timeless prin- ciples on which OSCE action has been undertaken and will continue to be based in the future, and to which participating States fully subscribe;

(…)

8. Reaffirm that every State is obliged to refrain from (…) organizing, instigating, pro- viding active or passive support or assistance to, or otherwise sponsoring terrorist acts in another State (…)

(…)

11. Recognize that the relevant United Nations conventions and protocols, and United Nations Security Council resolutions, in particular United Nations Security Council resolution 1373 (2001), constitute the primary international legal framework for the fight against terrorism;

12. Recognize the importance of the work developed by the United Nations Security Council Counter-Terrorism Committee and reaffirm the obligation and willingness of participating States and the OSCE to co-operate with this Committee;

13. Recall the OSCE’s role as a regional arrangement under Chapter VIII of the United Nations Charter, and its obligations in this context to contribute to the global fight against terrorism;

(…)

15. Take note with satisfaction of the Declaration and the Programme of Action adopted at the Bishkek International Conference on Enhancing Security and Stability in Central Asia: Strengthening Comprehensive Efforts to Counter Terrorism, held on 13 and 14 December 2001;

(…)

17. Underscore that the prevention of and fight against terrorism must be built upon a concept of common and comprehensive security and enduring approach, and commit to using the three dimensions and all the bodies and institutions of the OSCE to assist participating States, at their request, in preventing and combating terrorism in all its forms;

18. Undertake to fulfil their obligation, in accordance with the United Nations conven- tions, protocols and Security Council resolutions, as well as other international com- mitments, to ensure that terrorist acts and activities that support such acts, includ-

OSCE Human Dimension Commitments 239 Specific Threats to Human Security pa rt II

ing the financing of terrorism, are established as serious criminal offences in domes- tic laws;

19. Will work together to prevent, suppress, investigate and prosecute terrorist acts, including through increased co-operation and full implementation of the relevant inter- national conventions and protocols relating to terrorism;

20. Are convinced of the need to address conditions that may foster and sustain terror- ism, in particular by fully respecting democracy and the rule of law, by allowing all citi- zens to participate fully in political life, by preventing discrimination and encouraging intercultural and inter-religious dialogue in their societies, by engaging civil society in finding common political settlement for conflicts, by promoting human rights and tol- erance and by combating poverty;

21. Acknowledge the positive role the media can play in promoting tolerance and under- standing among religions, beliefs, cultures and peoples, as well as for raising awareness of the threat of terrorism;

22. Commit themselves to combat hate speech and to take the necessary measures to prevent the abuse of the media and information technology for terrorist purposes, ensuring that such measures are consistent with domestic and international law and OSCE commitments;

23. Will prevent the movement of terrorist individuals or groups through effective bor- der controls and controls relating to the issuance of identity papers and travel docu- ments;

(…)

25. Reaffirm their commitment to fulfil their international obligations, as set out in United Nations Security Council resolutions 1373 (2001) and 1390 (2002), and in par- ticular to freeze the assets of those designated by the Committee established pursuant to United Nations Security Council resolution 1267 (1999);

26. Note with concern the links between terrorism and transnational organized crime, money laundering, trafficking in human beings, drugs and arms, and in this regard emphasize the need to enhance co-ordination and to develop co-operative approaches at all levels in order to strengthen their response to these serious threats and challenges to security and stability (…)

Porto 2002 (Decisions: Decision No. 1 on Implementing the OSCE Commitments and Activities on Combating Terrorism) The Ministerial Council,

(…)

240 OSCE Human Dimension Commitments pa rt II Prevention of Terrorism

Commit themselves to work towards the successful conclusion of negotiations on new universal instruments in this field, presently under way within the United Nations and confirms their readiness to consider, in co-ordination with the United Nations Security Council Counter-Terrorism Committee, requests for technical assistance and capac- ity building with a view to advancing the ratification and implementation of United Nations and other relevant instruments on terrorism;

(…)

Recalls the Personal Representative of the Chairman-in-Office for Preventing and Com- bating Terrorism’s recommendation that the OSCE pursue activities inter alia in polic- ing, border security, anti-trafficking and suppressing terrorist financing (…)

Decides that the OSCE participating States, bodies and institutions will intensify their efforts and their collective commitment to combat terrorism and the conditions that may foster and sustain it by exploiting its strengths and comparative advantages: its comprehensive approach to security; its expertise in early-warning, conflict preven- tion, crisis management and post-conflict rehabilitation; its wide ranging repertoire of proven confidence- and security-building measures and its expertise in capacity build- ing.

Maastricht 2003 (OSCE Strategy to Address Threats to Security and Stability in the Twenty-First Century) Threats to security and stability in the twenty-first century

10. Terrorism is one of the most important causes of instability in the current security environment. It seeks to undermine the very values that unite the participating States in the OSCE area. Terrorism will remain a key challenge to peace and stability and to State power, particularly through its ability to use asymmetric methods to bypass traditional security and defence systems. There is no justification for terrorism whatsoever. At the same time, terrorism requires a global approach, addressing its manifestations as well as the social, economic and political context in which it occurs.

(…)

Addressing terrorism and threats arising from other criminal activities

29. (…) Special attention will be given to capacity building and other assistance in the sphere of counter-terrorism (…) Such measures include denying safe havens to terror- ists and eliminating conditions in which terrorists may recruit and gain support. They also aim at preventing terrorists from increasing their capabilities, including by prevent- ing terrorists from gaining access to SALW and other conventional weapons as well as WMD and associated technologies. Close interaction with other relevant international organizations and bodies, in particular the UN Security Council Counter-Terrorism Committee (UN CTC) and the UN Office on Drugs and Crimes (UNODC), is sought through joint meetings, contacts at all levels and specific programmes and projects.

OSCE Human Dimension Commitments 241 Specific Threats to Human Security pa rt II

30. The OSCE has also decided to establish a Counter-Terrorism Network to promote the strengthening of co-ordination of counter-terrorism measures and information sharing between OSCE participating States and to support and supplement the work of the UN CTC in implementing Security Council resolution 1373.

(…)

35. Threats of terrorism and organized crime are often interlinked, and synergetic approaches to deal with them will be further explored. Cross-border movement of per- sons, resources and weapons as well as trafficking for the purpose of financing and pro- viding logistic support play an increasing role for terrorist activities. The OSCE is com- mitted to addressing these problems and to strengthening its capacities to promote open and secure borders, inter alia, through the elaboration of an OSCE Border Secu- rity and Management Concept in order to enhance capacity building and mutually ben- eficial inter-State co-operation.

Sofia 2004 (Ministerial Statement on Preventing and Combating Terrorism) 1. We, the members of the Ministerial Council of the OSCE (…) declare our resolute and unconditional condemnation of terrorist acts, in particular those committed in 2004 in Spain, Uzbekistan, Turkey and Russia (…) We grieve the loss of hundreds of human lives and express our profound solidarity with victims of acts of terrorism and their families. These acts have vividly exposed terrorism’s inhuman nature. We express our solidarity with the States not participating in our Organization which were also attacked by terrorists.

Reiterating that terrorism constitutes one of the most serious threats to peace and secu- rity and considering that acts of terrorism seriously impair the enjoyment of human rights, we reaffirm our commitment to protect the enjoyment of human rights and fundamental freedoms, especially the right to life, of everyone within our jurisdiction against terrorist acts (…)

2. We underscore the leading role of the United Nations in the comprehensive fight against terrorism.

We reaffirm obligations and commitments adopted by our States in the field of combat- ing terrorism within the United Nations, including resolutions 1267 (1999), 1373 (2001), 1456 (2003), 1535 (2004), 1540 (2004) and 1566 (2004) of the United Nations Security Council, as well as resolution 58/187 of the United Nations General Assembly, and we support the resolution 2004/87 of the United Nations Commission on Human Rights. (…)

We welcome the importance attributed by UN Security Council resolution 1566 (2004) to the role of relevant international, regional and subregional organizations in strength- ening international co-operation in the fight against terrorism and the call for intensi- fied interaction with the United Nations.

242 OSCE Human Dimension Commitments pa rt II Prevention of Terrorism

We underline our determination to support the important efforts of the UN Security Council Counter-Terrorism Committee and of its Executive Directorate (…)

3. We (…) support the work of the Action against Terrorism Unit of the OSCE Secre- tariat.

We are convinced that the package of practical decisions that we adopt and welcome today*, and their further implementation will increase the level of security and stability in the OSCE area. These decisions will help ensure implementation of our obligations under international law to prevent and combat terrorism.

4. (…) We reaffirm that the OSCE efforts to counter terrorist threats should be taken in all OSCE dimensions, the security dimension, including the politico-military area, the economic and environmental dimension, and the human dimension. Based on the common, comprehensive and indivisible approach to security, our Organization could make further substantial contributions to global anti-terrorist efforts.

We are convinced that respect of human rights and fundamental freedoms is an impor- tant element of ensuring peace and stability and prevention of terrorism. We acknowl- edge that effective prevention of and fight against terrorism require the involvement of civil society in our countries.

(…) We will actively co-operate to find and bring to justice the perpetrators, organizers, supporters and sponsors of terrorist acts.

We also will continue to develop interaction and dialogue on the issues of preventing and combating terrorism with the Mediterranean and Asian Partners for Co-opera- tion.

Sofia 2004 (Decisions: Decision No. 3/04 on Combating the Use of the Internet for Terrorist Purposes) The Ministerial Council,

(…) Concerned by the extent of use of the Internet by terrorist organizations:

• To identify and to recruit potential members,

• To collect and transfer funds,

• To organize terrorist acts,

• To incite terrorist acts in particular through the use of propaganda,

* Permanent Council Decision No. 617 on Further Measures to Suppress Terrorist Financing (1 July 2004) Permanent Council Decision No. 618 on Solidarity with Victims of Terrorism (1 July 2004) Ministerial Decision on Combating the Use of the Internet for Terrorist Purposes Ministerial Decision on Enhancing Container Security Ministerial Decision on Reporting Lost/Stolen Passports to Interpol’s ASF-STD

OSCE Human Dimension Commitments 243 Specific Threats to Human Security pa rt II

Decides that participating States will exchange information on the use of the Internet for terrorist purposes and identify possible strategies to combat this threat (…)

6.4.2 Respecting Human Rights and the Rule of Law While Combating Terrorism Madrid 1983 (Questions Relating to Security in Europe: Principles) The participating States (…) express their determination to take effective measures for the prevention and suppression of acts of terrorism…They agree to do so in conformity with (…) the Helsinki Final Act.

Copenhagen 1990 (6) The participating States (…) recognize their responsibility to defend and protect, in accordance with their laws, their international human rights obligations and their international commitments, the democratic order freely established through the will of the people against the activities of persons, groups or organizations that engage in or refuse to renounce terrorism or violence aimed at the overthrow of that order or of that of another participating State.

Bucharest 2001 (Ministerial Declaration) 3. (…) We reiterate that the struggle against terrorism is not a war against religions or peoples. We reaffirm our commitment to protecting human rights and fundamental freedoms.

4. We are determined to protect our citizens from new challenges to their security while safeguarding the rule of law, individual liberties, and the right to equal justice under law.

Bucharest 2001 (Decision No. 1 on Combating Terrorism) (…) The OSCE participating States will not yield to terrorist threats, but will com- bat them by all means in accordance with their international commitments (…) They will defend freedom and protect their citizens against acts of terrorism, fully respect- ing international law and human rights. They firmly reject identification of terrorism with any nationality or religion and reconfirm the norms, principles and values of the OSCE.

Bucharest 2001 (Annex to Decision 1 on Combating Terrorism: The Bucharest Plan of Action for Combating Terrorism) 26. Preventing movement of terrorists: Participating States: Will prevent the movement of terrorist individuals or groups through effective border controls and controls on issu- ance of identity papers and travel documents... Will apply such control measures fully respecting their obligations under international refugee and human rights law.

Porto 2002 (Charter on Preventing and Combating Terrorism) The OSCE participating States (…)

244 OSCE Human Dimension Commitments pa rt II Prevention of Terrorism

5. Consider of utmost importance to complement the ongoing implementation of OSCE commitments on terrorism with a reaffirmation of the fundamental and timeless prin- ciples on which OSCE action has been undertaken and will continue to be based in the future, and to which participating States fully subscribe;

6. Reaffirm their commitment to take the measures needed to protect human rights and fundamental freedoms, especially the right to life, of everyone within their jurisdiction against terrorist acts;

7. Undertake to implement effective and resolute measures against terrorism and to conduct all counter-terrorism measures and co-operation in accordance with the rule of law, the United Nations Charter and the relevant provisions of international law, international standards of human rights and, where applicable, international human- itarian law;

Sofia 2004 (Ministerial Statement on Preventing and Combating Terrorism) (…) We re-emphasize our determination to combat terrorism in all its forms and man- ifestations (…) and to conduct this fight with respect for the rule of law and in accord- ance with our obligations under international law, in particular international human rights, refugee and humanitarian law.

2. We underscore the leading role of the United Nations in the comprehensive fight against terrorism (…) we support the resolution 2004/87 of the United Nations Com- mission on Human Rights (…)

Sofia 2004 (Decisions: Decision No. 3/04 on Combating the Use of the Internet for Terrorist Purposes) (…) Concerned by the extent of use of the Internet by terrorist organizations (…) Decides that participating States will exchange information on the use of the Internet for ter- rorist purposes and identify possible strategies to combat this threat, while ensuring respect for international human rights obligations and standards, including those con- cerning the rights to privacy and freedom of opinion and expression;

6.4.3 Prevention of Terrorism-Related Activities on the Territory of Participating States Madrid 1983 (Questions Relating to Security in Europe: Principles) In the context of the combat against acts of terrorism, they will take all appropriate measures in preventing their respective territories from being used for the prepara- tion, organization or commission of terrorist activities, including those directed against other participating States and their citizens. This also includes measures to prohibit on their territories illegal activities of persons, groups and organizations that instigate, organize or engage in the perpetration of acts of terrorism.

Vienna 1989 (Questions Relating to Security in Europe: Principles) (10) (…) the participating States express their intention

OSCE Human Dimension Commitments 245 Specific Threats to Human Security pa rt II

(…)

(10.3.) - to prevent on their territories illegal activities of persons, groups or organi- zations that instigate, organize or engage in the perpetration of acts of terrorism or subversive or other activities directed towards the violent overthrow of the regime of another participating State;

Istanbul 1999 (Charter for European Security: I. Our Common Challenges) 4. (…) We will enhance our efforts to prevent the preparation and financing of any act of terrorism on our territories and deny terrorists safe havens (…)

Bucharest 2001 (Annex to Decision No. 1 on Combating Terrorism: The Bucharest Plan of Action for Combating Terrorism) 24. Suppressing the financing of terrorism. Participating States: Will, within the frame- work of the United Nations Convention on the Suppression of Financing of Terrorism and UNSCR 1373 (2001), take action to prevent and suppress the financing of terror- ism, criminalize the wilful provision or collection of funds for terrorist purposes, and freeze terrorist assets also bearing in mind UNSCR 1267 (1999). Will, in accordance with their domestic legislation and obligations under international law, provide early response to requests for information by another participating State and relevant inter- national organizations.

25. Participating States/Secretariat: (…) Will consider how the OSCE may contribute, within the framework of its work on transparency and the fight against corruption, to the wider international effort to combat terrorism. Will consider taking on a catalytic role in providing targeted projects for the training of the personnel of domestic finan- cial institutions in counter-terrorism areas, inter alia on monitoring of financial flows and on prevention of money laundering. Participating States will participate construc- tively in the forthcoming negotiations at the United Nations on a global instrument against corruption, with a view to their early and successful conclusion.

26. Preventing movement of terrorists: Participating States: Will prevent the movement of terrorist individuals or groups through effective border controls and controls on issu- ance of identity papers and travel documents, as well as through measures for ensuring the security of identity papers and travel documents and preventing their counterfeit- ing, forgery and fraudulent use. Will apply such control measures fully respecting their obligations under international refugee and human rights law. Will, through the proper application of the exclusion clauses contained in the 1951 Convention Relating to the Status of Refugees and its 1967 Protocol, ensure that asylum is not granted to persons who have participated in terrorist acts. Will provide for the timely detention and pros- ecution or extradition of persons charged with terrorist acts, in accordance with their obligations under international and national law.

246 OSCE Human Dimension Commitments pa rt II Prevention of Terrorism

Porto 2002 (Charter on Preventing and Combating Terrorism) The OSCE participating States, firmly committed to the joint fight against terrorism,

8. Reaffirm that every State is obliged to refrain from harbouring terrorists, organizing, instigating, providing active or passive support or assistance to, or otherwise sponsor- ing terrorist acts in another State, or acquiescing in organized activities within its terri- tory directed towards the commission of such acts;

(…)

24. Recognize the need to complement international co-operation by taking all neces- sary measures to prevent and suppress, in their territories through all lawful means, assistance to, and the financing and preparation of, any acts of terrorism, and to crim- inalize the wilful provision or collection of funds for terrorist purposes, in the frame- work of their obligations under the International Convention for the Suppression of the Financing of Terrorism and relevant Security Council resolutions;

6.4.4 Extradition and Prosecution of Persons Implicated in Terrorist Acts Vienna 1989 (Questions Relating to Security in Europe: Principles) (10) (…) the participating States express their intention

(…)

(10.5) - to ensure the extradition or prosecution of persons implicated in terrorist acts and to co-operate closely in cases of conflict of jurisdiction where several States are concerned, acting in both respects in accordance with the relevant international agree- ments;

Budapest 1994 (Decisions: IV. Code of Conduct on Politico-Military Aspects of Security) 6. The participating States (…) will, in particular, take steps to fulfil the requirements of international agreements by which they are bound to prosecute or extradite terrorists.

Bucharest 2001 (Annex to Decision No. 1 on Combating Terrorism: The Bucharest Plan of Action for Combating Terrorism) 19. Supporting law enforcement and fighting organized crime: Participating States: (…) Will afford one another the greatest measure of assistance in providing information in connection with criminal investigations or criminal extradition proceedings relating to terrorist acts, in accordance with their domestic law and international obligations.

Porto 2002 (Charter on Preventing and Combating Terrorism) The OSCE participating States, firmly committed to the joint fight against terrorism,

(…)

OSCE Human Dimension Commitments 247 Specific Threats to Human Security pa rt II

10. Will take appropriate steps to ensure that asylum is not granted to any person who has planned, facilitated or participated in terrorist acts, in conformity with relevant provisions of national and international law (…)

(…)

18. Undertake to fulfil their obligation, in accordance with the United Nations conven- tions, protocols and Security Council resolutions, as well as other international com- mitments, to ensure that terrorist acts and activities that support such acts, includ- ing the financing of terrorism, are established as serious criminal offences in domes- tic laws;

19. Will work together to prevent, suppress, investigate and prosecute terrorist acts, including through increased co-operation and full implementation of the relevant inter- national conventions and protocols relating to terrorism;

248 OSCE Human Dimension Commitments 7. Commitments Related to International Humanitarian Law

Helsinki 1992 (Decisions: VI. The Human Dimension) The participating States

(47) Recall that international humanitarian law is based upon the inherent dignity of the human person;

(48) Will in all circumstances respect and ensure respect for international humanitar- ian law including the protection of the civilian population;

(49) Recall that those who violate international humanitarian law are held personally accountable;

(50) Acknowledge the essential role of the International Committee of the Red Cross in promoting the implementation and development of international humanitarian law, including the Geneva Conventions and their relevant Protocols;

(51) Reaffirm their commitment to extend full support to the International Commit- tee of the Red Cross, as well as to the Red Cross and Red Crescent Societies, and to the United Nations organizations, particularly in times of armed conflict, respect their pro- tective emblems, prevent the misuse of these emblems and, as appropriate, exert all efforts to ensure access to the areas concerned;

(52) Commit themselves to fulfilling their obligation to teach and disseminate informa- tion about their obligations under international humanitarian law.

Stockholm 1992 (Decisions: 2. The CSCE as a Community of Values) The increasing problem of refugees and displaced persons is an issue of major con- cern to all participating States, particularly in conflicts where the fulfilment of basic human needs is most at risk. The Ministers deplored the plight of civil populations most affected in such conflicts and called on all participating States to contribute to a con-

OSCE Human Dimension Commitments 249 International Humanitarian Law pa rt II

certed effort to share the common burden. All Governments are accountable to each other for their behaviour towards their citizens and towards their neighbours. Individu- als are to be held personally accountable for war crimes and acts in violation of interna- tional humanitarian law.

Rome 1993 (Decisions: X. Declaration on Aggressive Nationalism, Racism, Chauvinism, Xenophobia and Anti-Semitism) 4. The Ministers focused attention on the need for urgent action to enforce the strict observance of the norms of international humanitarian law, including the prosecution and punishment of those guilty of war crimes and other crimes against humanity.

Budapest 1994 (Decisions: IV. Code of Conduct on Politico-Military Aspects of Security) 29. The participating States will make widely available in their respective countries the international humanitarian law of war. They will reflect, in accordance with national practice, their commitments in this field in their military training programmes and regulations.

30. Each participating State will instruct its armed forces personnel in international humanitarian law, rules, conventions and commitments governing armed conflict and will ensure that such personnel are aware that they are individually accountable under national and international law for their actions.

31. The participating States will ensure that armed forces personnel vested with com- mand authority exercise it in accordance with relevant national as well as international law and are made aware that they can be held individually accountable under those laws for the unlawful exercise of such authority and that orders contrary to national and international law must not be given. The responsibility of superiors does not exempt subordinates from any of their individual responsibilities.

(…)

34. Each participating State will ensure that its armed forces are, in peace and in war, commanded, manned, trained and equipped in ways that are consistent with the provi- sions of international law and its respective obligations and commitments related to the use of armed forces in armed conflict, including as applicable the Hague Conventions of 1907 and 1954, the Geneva Conventions of 1949 and the 1977 Protocols Additional thereto, as well as the 1980 Convention on the Use of Certain Conventional Weapons.

35. Each participating State will ensure that its defence policy and doctrine are consist- ent with international law related to the use of armed forces, including in armed con- flict, and the relevant commitments of this Code.

Budapest 1994 (Decisions: VIII. The Human Dimension) 33. The participating States deeply deplore the series of flagrant violations of interna- tional humanitarian law that occurred in the CSCE region in recent years and reaffirm

250 OSCE Human Dimension Commitments pa rt II

their commitment to respect and ensure respect for general international humanitar- ian law and in particular for their obligations under the relevant international instru- ments, including the 1949 Geneva Conventions and their additional protocols, to which they are a party.

34. They emphasize the potential significance of a declaration on minimum humanitar- ian standards applicable in all situations and declare their willingness to actively par- ticipate in its preparation in the framework of the United Nations. They commit them- selves to ensure adequate information and training within their military services with regard to the provisions of international humanitarian law and consider that relevant information should be made available.

35. They highly value the developing co-operation between the CSCE and the Interna- tional Committee of the Red Cross (ICRC), in particular in the case of CSCE missions, and welcome the readiness of the ICRC to develop this co-operation and commit them- selves to further extend support to the ICRC, in particular by strengthening contacts already established between CSCE missions and the ICRC’s delegations in the field.

Istanbul 1999 (Charter for European Security: III. Our Common Response) 22. We reject any policy of ethnic cleansing or mass expulsion (…) In order to enhance the protection of civilians in times of conflict, we will seek ways of reinforcing the appli- cation of international humanitarian law.

Sofia 2004 (Ministerial Declaration on the Sixtieth Anniversary of the End of World War II) (…) We condemn all forms of ethnic cleansing. We confirm our adherence to the UN Convention on the Prevention and Punishment of the Crime of Genocide adopted on 9 December 1948. We call on the participating States to take every possible action to ensure that attempts to commit genocide are prevented today and in the future. The perpetrators of such crimes should be brought to justice.

Sofia 2004 (Decisions: Annex to Decision No. 14/04, 2004 OSCE Action Plan for the Promotion of Gender Equality) • Support national and international efforts to bring to justice those who have perpe- trated crimes against women which under applicable rules of international law are recognized as war crimes or crimes against humanity (…)

OSCE Human Dimension Commitments 251 Index

A abolition of capital punishment — see death penalty alternative sentencing 96, 179 anti-corruption — see corruption anti-Semitism xxii, 10, 45, 46, 48, 49, 50, 60, 64, 144, 155, 165, 187, 188, 189, 190, 191, 192, 193, 194, 195, 196, 199, 202, 204, 205, 250; also see tolerance and non-discrimination anti-terrorism — see terrorism anti-trafficking — see trafficking in human beings arbitrary arrest general 94, 101-103 UN Code of Conduct for Law Enforcement Officials 94, 99, 178 UN Standard Minimum Rules for the Treatment of Prisoners 94, 99, 178 artistic creation 121, 137 assembly, freedom of 79, 108, 110-111, 113 assimilation (of national minorities against their will) 109, 111, 114, 148 association, freedom of 26, 27, 82, 92, 108, 110-111, 113, 131, 135 asylum, right to seek 171, 229, 237, 246, 248 asylum seeker 171, 191, 192

B belief, freedom of — see freedom of thought, conscience, religion or belief birthrights, human rights as xx, 76

C capital punishment — see death penalty Charter of the United Nations 5, 8, 24, 73, 76, 96, 141, 232, 234

OSCE Human Dimension Commitments 253 Index

children general 123, 126, 164, 168, 177-178, 229 Convention on the Rights of the Child 177, 211, 219, 229 education of 108, 148, 161, 162, 168, 173, 174, 207, 216, 229 Optional Protocol to the Convention on the Rights of the Child, on the Sale of Children, Child Prostitution and Child Pornography 211, 219, 229 rights of 177-178, 211, 219 trafficking of 41, 45, 177, 184, 211, 212, 213, 214, 215, 217, 218, 219, 220, 221, 222, 224, 225, 226, 229, 230 citizenship — see nationality/citizenship civil and political rights general 97-131, 132 International Covenant on Civil and Political Rights xix, xx, 10, 67, 90, 91, 97, 98, 105, 112, 186 civil society xii, xiv, xxii, 5, 25-30, 50, 51, 52, 54, 77, 84, 85, 86, 87, 190, 191, 192, 204, 217, 224, 227, 240, 243; also see NGOs/non-governmental organizations; human rights defenders Code of Conduct on Politico-Military Aspects of Security 84, 93, 107, 178, 233, 235, 247, 250 communication, right to 113; also see freedom of expression, information, free media compulsory recruitment 178 compensation, right to 93, 95, 103; also see arbitrary arrest conscience, freedom of — see freedom of thought, conscience, religion or belief conscientious objection 106-107, 178 ; also see freedom of thought, conscience, religion or belief Contact Point for Roma and Sinti Issues — see Roma and Sinti copyright 112, 113, 118; also see intellectual property correspondence, protection of 130 corruption 87-88, 133, 213, 222, 223, 231, 236, 237, 238, 246 counter-terrorism — see terrorism creativity — see cultural rights/cultural heritage criminal procedure 54, 104; also see fair trial, right to cultural rights/cultural heritage general 121, 128, 132, 135-137, 150, 151, 152, 153, 161, 173, 176, 177, 200, 201 creativity 121 freedom of artistic creation 121, 137 intellectual and cultural life 82, 121, 137 International Covenant on Economic, Social and Cultural Rights 90, 132, 186

D data protection 224 death penalty (includes references to capital punishment and the right to life) general 94, 98, 242, 245 Second Optional Protocol to the International Covenant on Civil and Political Rights 98 Sixth Protocol to the European Convention for the Protection of Human Rights and Fundamental Freedoms 98 democracy — also see elections general ix, x, xi, xiii, xvi, xvii, xxii, xxiii, 3, 4, 5, 6, 14, 22, 30, 31, 34, 35, 75, 76, 80, 82, 84, 86, 89, 91, 120, 133, 140, 145, 150, 184, 189, 204, 240 democratic institutions xxii, 5, 6, 31, 33, 34, 35, 51, 53, 54, 77, 80-88, 93, 121, 137, 143, 191, 230, 233, 237 political pluralism xvii, xviii, xxiii, 3, 75, 80, 110, 133, 134, 140

254 OSCE Human Dimension Commitments  Index

right of citizens to take part in governing 32, 78 separation of powers 81 demonstration, right of 111; also see assembly, freedom of derogation clauses 67-69 detention, arbitrary — see arbitrary arrest disabilities, persons with 136, 161, 176-177 discrimination — see tolerance and non-discrimination; Roma and Sinti; women’s rights displaced persons — also see asylum, right to seek; asylum seekers; migration; refugees general 168, 169-171, 178, 188, 217, 249 UN Guiding Principles on Internal Displacement 171, 192 domicile, protection of 130

E economic and social rights general 43, 132-135 employment 42, 123, 124, 132, 133, 134, 142, 157, 163, 164, 172, 173, 183, 196, 216, 236 health 43, 47, 132, 133, 134, 157, 164, 168, 175, 196, 228 housing 42, 124, 132, 142, 157, 163, 168, 172, 176, 177, 196, 229 International Covenant on Economic, Social and Cultural Rights 90, 132, 186 social justice 4, 133 social security 123, 132, 172, 173, 175 education general 9, 33, 43, 50, 83, 84, 92, 93, 99, 101, 148-151, 154, 164, 216, 229 access to education 60, 61, 123, 124, 128, 134, 137, 142, 147, 157, 161-163, 173, 174, 175, 183, 196, 216 human rights education 9-11, 26, 203, 205 relating to tolerance and non-discrimination 193, 194, 196, 201, 203, 204, 205; also see tolerance and non-discrimination relating to trafficking in human beings 214, 217, 220; also see trafficking in human beings religious education 108, 109, 148-151; also see freedom of thought, conscience, religion or belief right to education 132, 137, 151 effective remedies, right to 26, 27, 103, 104-106, 127, 142, 158, 161, 167, 195, 197 elections general xiii, xxii, 31, 32, 39-40, 47, 51, 63, 75, 76, 77-80, 81, 83, 142, 147, 160, 170 election observation xxii, 12, 31, 32, 33, 39, 47, 51, 78, 79, 80, 142 voter education 47 electronic communications, protection of 130 emergency, public — see state of public emergency; derogation clauses employment — see economic and social rights equal rights of men and women — see women’s rights equal rights of peoples — see self-determination ethnic cleansing 170, 171, 187, 188, 189, 192, 251; also see tolerance and non-discrimination European Convention for the Protection of Human Rights and Fundamental Freedoms general 10, 90, 105 Sixth Protocol to the European Convention for the Protection of Human Rights and Fundamental Freedoms 98 exile, arbitrary 94, 101; also see arbitrary arrest expansion, territorial — see territorial expansionism

OSCE Human Dimension Commitments 255 Index

extremism 5, 46, 60, 64, 189, 190, 191, 192, 196, 204, 233, 235; also see tolerance and non- discrimination

F fair trial, right to 103-104 family life, respect for 130 family reunification 122-129 forced recruitment — see compulsory recruitment forced labour 75, 134, 213, 218; also see trafficking in human beings freedom of artistic creation — see cultural rights/cultural heritage freedom of assembly — see assembly, freedom of freedom of association, see association, freedom of freedom of expression, information, free media general 46, 60, 62, 63, 64, 65, 69, 76, 92, 111-121, 158, 201, 206, 207, 245 freedom of the press/free media xxiii, 33, 39, 62-65, 111-121, 151-153, 206 journalists — see working conditions Representative on Freedom of the Media ix, xxiii, 30, 46, 60, 62-65, 120, 151, 171, 189, 203, 235, 236 right to know and act upon one’s rights xv, 25-27, 88 freedom of information — see freedom of expression, information, free media freedom of movement 122-129, 218; also see migration freedom of the media — see freedom of expression, information, free media freedom of the press — see freedom of expression, information, free media freedom of thought, conscience, religion or belief general xvi, 46, 60, 65, 107-110, 188, 191 conscientious objection 106-107, 178 religious education — see education free flow of information — see freedom of expression, information, free media free media — see freedom of expression, information, free media

G gender, gender issues — see women’s rights genocide general 192, 251 Convention on the Prevention and Punishment of the Crime of Genocide 192, 195, 251 gypsies — see Roma and Sinti

H hate crime xxii, 48, 64, 155, 166-167, 189-194, 197, 198, 199, 204, 206; also see tolerance and non- discrimination health — see economic and social rights heritage, cultural — see cultural rights/cultural heritage High Commissioner on National Minorities — see national minorities Holocaust 161, 192, 205 housing — see economic and social rights human contacts xiii, 5, 12, 75, 122-129, 151-153

256 OSCE Human Dimension Commitments  Index

human dimension mechanisms general 12-23 Moscow mechanism xxi, 13-18 Vienna mechanism xxi, 12-13 Mechanism to Assist Participating States in Combating Trafficking in Human Beings 19-20 Counter-Terrorism Network 21-22, 242 other mechanisms 22-23 humanitarian law — see international humanitarian law human rights defenders 25-30 human rights education — see education human rights institutions — see ombudsmen and national human rights institutions

I impartiality — see independence of the judiciary implementation — see obligation to implement imprisonment, arbitrary — see arbitrary arrest incarceration, arbitrary — see arbitrary arrest independence of the judiciary 91-93, 140 indigenous populations 168 information, freedom of — see freedom of expression, information, free media intellectual property 112, 113, 121, 130 internally displaced persons — see displaced persons; migration international humanitarian law general xiii, 38, 170, 171, 188, 245, 249-251 1949 Geneva Conventions and their additional protocols 249-251 international law, generally recognized principles of 96 international law, obligations under — see obligations under international law Islamophobia — see Muslims, intolerance towards; tolerance and non-discrimination

J judiciary, independence of — see independence of the judiciary journalists — see freedom of expression, information, free media; working conditions

L legal profession, independence of — see independence of the judiciary life, right to — see death penalty

M mass deportation 170, 171, 187, 188, 189, 251; see tolerance and non-discrimination mechanisms, human dimension — see human dimension mechanisms media, freedom of the — see freedom of expression, information, free media medical practices, arbitrary 94, 99; also see torture migration 33, 122-129, 169-171, 172-177, 188, 193, 213, 215, 216, 231, 238; also see asylum, right to seek; asylum seekers; displaced persons; freedom of movement; refugees migrant workers 172-177 military service, exemption from — see conscientious objection minorities — see national minorities

OSCE Human Dimension Commitments 257 Index

Moscow mechanism xxi, 13-18 movement, freedom of — see freedom of movement multi-culturalism 64, 203, 204, 235; also see tolerance and non-discrimination Muslims, intolerance towards xxii, 49, 50, 190, 194; also see tolerance and non-discrimination

N nationalism, aggressive 45, 46, 60, 64, 187-191, 196, 202, 204, 250; also see tolerance and non- discrimination nationality/citizenship 130, 143, 157, 170, 196; also see statelessness, stateless persons national minorities general xi, xiii, xviii, xxii, 4, 5, 6, 54-61, 79, 109, 111, 112, 114, 128, 137, 139-155, 165, 182, 206, 188, 190, 191, 203, 217, 236 High Commissioner on National Minorities ix, xxii, xxiii, 11, 18, 30, 35, 46, 54-61, 62, 64, 144, 145, 147, 151, 189, 203, 235 NGOs/non-governmental organizations xxi, xxii, 12, 20, 24, 25-30, 33, 35, 36, 37, 41, 51, 57, 58, 86, 90, 98, 101, 104, 106, 111, 143, 153, 154, 169, 192, 202, 212, 224; also see civil society non-applicability of the non-intervention principle xviii, 6 non-discrimination — see tolerance and non-discrimination non-intervention principle — see non-applicability of the non-intervention principle

O obligation to implement 7-8; also see derogation clauses obligations under international law, conflict between 96 ODIHR, Office for Democratic Institutions and Human Rights ix, x, xi, xii, xxi, xxii, 11, 17, 18, 20, 29, 30, 31-54, 55, 59, 60, 62, 63, 64, 65, 79, 80, 110, 156, 168, 171, 189, 192, 197, 198, 199, 203, 212, 229, 230, 235, 236 Office for Free Elections xxii, 31, 33, 79, 142; also see ODIHR ombudsmen and national human rights institutions 46, 51, 54, 85, 186

P persecution 165, 171, 187, 209-210, 229; also see tolerance and non-discrimination political parties — see association, freedom of political pluralism — see democracy populations, indigenous — see indigenous populations press, freedom of — see freedom of expression, information, free media presumption of innocence — see fair trial, right to prison prison reform 54, 93, 222 treatment of prisoners, prisoners’ rights 94-96, 99, 100, 102, 103, 178-179; also see torture private life, respect for 130 property rights 130-131, 163, 187 prostitution 183, 209, 211, 219, 229; also see women’s rights; children psychiatric or other medical practices, arbitrary 94, 99; also see torture public emergency — see state of public emergency; also see derogation clauses punishment capital — see death penalty degrading — see torture

258 OSCE Human Dimension Commitments  Index

R racism — see tolerance and non-discrimination recruitment, forced — see compulsory recruitment redress, effective means of — see effective remedies, right to refugees — also see migration general xvi, 79, 122, 168, 169-171, 178, 188, 192, 210, 229, 237, 244, 245, 246, 249 Convention relating to the Status of Refugees 169, 171, 210, 237, 246 non-refoulement 229 religion, freedom of — see freedom of thought, conscience, religion or belief religious education — see education remedies, effective — see effective remedies, right to Representative on Freedom of the Media ix, xxiii, 10, 30, 46, 60, 62-65, 120, 151, 171, 189, 203, 235, 236; also see freedom of expression, information, free media residence, freedom of — see freedom of movement restrictions to human rights, legitimate — see derogation clauses returnees 169-171; also see migration reunification of families — see family reunification right to life — see death penalty Roma and Sinti general xxii, 40-48, 60, 61, 65, 66, 144, 155-168, 187, 196 Action Plan on Improving the Situation of Roma and Sinti within the OSCE Area 41, 46, 60, 65, 156, 157, 159, 161, 163, 165, 166, 168, 196 Contact Point for Roma and Sinti Issues (CPRSI) xxii, 40-45, 156, 158-159 rule of law ix, x, xi, xiii, xvi, xvii, xviii, xxii, xxiii, 3, 4, 5, 6, 14, 22, 30, 31, 34, 46, 53, 54, 60, 65, 69, 75, 76, 77, 80, 83, 85, 86, 87, 88-96, 133, 140, 141, 182, 189, 191, 200, 201, 231, 233, 236, 237, 240, 244-248

S self-determination, right of 73 separation of powers — see democracy sexual exploitation — see children; women’s rights Sinti and Roma — see Roma and Sinti slavery 213, 218 social justice — see economic and social rights social rights — see economic and social rights social security — see economic and social rights statelessness, stateless persons 130, 169-171; also see nationality/citizenship state obligation — see obligation to implement state of public emergency 18, 35, 67, 68-69, 99, 119 strike, right to 111, 135; also see association, freedom of

T territorial expansionism 187; also see tolerance and non-discrimination terrorism xxii, 21-22, 30, 32, 53-54, 55, 57, 63, 64, 76, 81, 171, 189, 190, 206, 231, 232-248 Bucharest Plan of Action for Combating Terrorism 53, 64, 171, 189, 203, 234, 235, 244, 246, 247 Charter on Preventing and Combating Terrorism 203, 206, 238, 244, 247 Convention on the Suppression of Financing of Terrorism 236, 246

OSCE Human Dimension Commitments 259 Index

Counter-Terrorism Network 21-22, 242 OSCE Action against Terrorism Unit (ATU) 21-22, 243 thought, freedom of — see freedom of thought, conscience, religion or belief tolerance and non-discrimination general xiii, xxii, 5, 10, 23, 34, 45-50, 60, 63, 64, 65, 76, 108, 109, 110, 137, 140, 144, 146, 147, 150, 151, 153, 165, 166, 175, 176, 181-208, 235, 240 Convention on the Elimination of All Forms of Racial Discrimination 165, 195, 196 torture and cruel, inhuman or degrading treatment or punishment general 67, 68, 94, 95, 98-101, 102, 179 Convention against Torture and Other Cruel, Inhuman or Degrading Treatment or Punishment 94, 99, 101 European Convention for the Prevention of Torture and Inhuman or Degrading Treatment or Punishment 101 UN Committee against Torture 99 UN Special Rapporteur on Torture and Other Cruelly Inhuman or Degrading Treatment or Punishment 101 trade in human beings — see trafficking in human beings trade unions — 27, 75, 82, 110, 111, 134, 135, 153, 176; also see association, freedom of trafficking in human beings general xvi, 19-20, 41, 44, 51-52, 53, 54, 177, 183, 184, 210-232, 240 Convention against Transnational Organized Crime 211, 212, 213, 219, 221, 222, 226, 231, 236 National Referral Mechanisms 52, 226, 227, 229 OSCE Action Plan to Combat Trafficking in Human Beings 19, 215, 219, 220, 226 Protocol Against the Smuggling of Migrants by Land, Sea and Air 213 Protocol to Prevent, Suppress and Punish Trafficking in Persons, especially Women and Children 211, 212, 213, 219, 221, 226 treatment, degrading — see torture tribunal, independent — see independence of the judiciary

U United Nations conventions and protocols — see relevant subject entry Universal Declaration of Human Rights 9, 67, 90, 91, 112, 207 universality of human rights 3, 25, 73

V Vienna mechanism xxi, 12-13 violence against children 177, 218, 225 against minorities — see tolerance and non-discrimination against women 50, 164, 183, 184, 209-210, 216, 218, 225, 251 vocational training 164, 172, 173, 177, 216

W women’s rights Convention on the Elimination of All Forms of Discrimination against Women 182, 186 equal rights of men and women 20, 50-51, 61, 65, 157, 160, 171, 182-186, 216, 217, 218 OSCE Action Plan for the Promotion of Gender Equality 50, 61, 65, 171, 184, 185, 210, 251

260 OSCE Human Dimension Commitments  Index

OSCE Action Plan on Gender Issues 184, 210 protection against all forms of violence 50, 164, 183, 184, 209-10, 216, 218, 225, 251 sexual exploitation 184, 209, 211, 213, 218, 225; also see trafficking in human beings working conditions general 133, 175 for journalists 62, 114-120 workers, migrant — see migrant workers workers’ rights 134

X xenophobia 10, 45, 46, 48, 49, 50, 60, 64, 65, 106, 144, 155, 165, 175, 176, 186-208, 250; also see tolerance and non-discrimination

Y youth, young people 42, 153, 164, 205, 207, 214, 218

OSCE Human Dimension Commitments 261

LES ENGAGEMENTS DE LA DIMENSION HUMAINE DE L’OSCE LES ENGAGEMENTS Volume 1 DE LA DIMENSION HUMAINE DE L’OSCE Recueil de textes thématiques

Seconde édition

BI DDH  LES ENGAGEMENTS DE LA DIMENSION HUMAINE DE L’OSCE Volume 1

Recueil de textes thématiques

Seconde édition Publié par le Bureau des institutions démocratiques et des droits de l’homme (BIDDH) de l’OSCE. Al. Ujazdowskie 19, 00-557 Varsovie, Pologne www.osce.org/odihr

© OSCE/BIDDH 2007

Tous droits réservés. Les contenus de cette publication peuvent être librement utilisés et reproduits à des fins pédagogiques et non commerciales, à condition de mentionner qu’ils proviennent de l’OSCE et du BIDDH.

Conception : Nona Reuter Contenu Préambule a la seconde édition ix Avant-propos de la première édition xi Préface: Comment utiliser ce recueil xiii La dimension humaine de l’OSCE : introduction xv Documents de l’OSCE qui sont mentionnés dans ce recueil de textes xxv

I. Provisions générales relatives à la dimension humaine 1

1. Introduction à la dimension humaine 3 1.1 La nature et l’importance de la dimension humaine 3 1.2 La dimension humaine comme question internationale directe et légitime 6 2. Mise en œuvre des engagements de la dimension humaine 9 2.1 Obligation de mise en œuvre 9 2.2 Méthodes de mise en œuvre 11 2.2.1 Provisions générales (y compris l’enseignement des droits de l’homme) 11 2.2.2 Résumé de la mise en œuvre 13 2.2.3 Observation 14 2.2.4 Mécanismes de la dimension humaine de l’OSCE et autres mécanismes pertinants 14 A. Mécanisme de Vienne 15 B. Mécanisme de Moscou 16 C. Mécanisme de l’OSCE visant à aider les États participants à lutter contre la traite des êtres humains 21 D. Réseau contre-terrorism de l’OSCE 23 E. Autres mécanismes 26 2.3 Partenaires de la mise en œuvre 26 2.3.1 Gouvernements, corps et institutions 26 2.3.2 Gouvernements d’autres pays et organisations internationales 27 2.3.3 Individus, défenseurs des droits de l’homme et organisations non gouvernementales 29 2.3.4 Institutions de l’OSCE relatives à la dimension humaine 34 A. Bureau des institutions démocratiques et des droits de l’homme (BIDDH) 35 i) Cadre général, y compris les tâches-clés supplémentaires 25

Les engagements de la dimension humaine de l’OSCE  Contenu

ii) Tâches-clés supplémentaires relatives aux élections 44 iii) Point de contact du BIDDH pour les questions concernant les Roms et les Sinti 44 iv) Tâches-clés supplémentaires relatives à la tolérance et la non-discrimination, y compris les questions Rom et Sinti 51 v) Tâches-clés supplémentaires relatives à la parité homme-femme 56 vi) Tâches-clés supplémentaires relatives à la traite des êtres humains 58 vii) Tâches-clés supplémentaires relatives à la lutte contre le terrorisme 60 B. Haut-commissaire pour les minorités nationales 61 C. Représentant de l’OSCE pour la liberté des médias 69

3. Restrictions et dérogations 75 3.1 Étendue et nature des restrictions légitimes 75 3.2 Dérogations aux obligations en cas d’état d’urgence public 75

II. Engagements spécifiques à la dimension humaine 79

1. Engagements relatifs au droit des peuples à l’autodétermination 81 2. Engagements relatifs aux composantes structurelles d’une société démocratique 83 2.1 Provisions générales 83 2.2 Elections 86 2.3 Institutions démocratiques 89 2.3.1 Provisions générales 89 2.3.2 Gouvernement décentralisé, structures et corps spécifiques 92 2.3.3 Contrôle civil démocratique des forces de sécurité intérieures, des forces militaires et paramilitaires, des services de renseignement et de la police 93 2.3.4 Institutions nationales indépendantes traitant des droits de l’homme 94 2.3.5 Organisations non gouvernementales 95 2.3.6 Encourager la transparence, lutter contre la corruption et améliorer la gestion des ressources publiques 96 2.4 Règles de l’État de droit 97 2.4.1 Provisions générales 97 2.4.2 Indépendance de la justice et des juristes, fonctionnement impartial des services judiciaires publics 100 2.4.3 Administration de la justice 102 A. Application de la loi 102 B. Traitement des personnes privées de liberté 103 2.4.4 Obéissance aux obligations internationales 105 3. Engagements relatifs aux droits de l’homme applicables à tout 107 3.1 Droits civils et politiques 107 3.1.1 Provisions générales 107

vi Les engagements de la dimension humaine de l’OSCE  Contenu

3.1.2 Droit à la vie/abolition de la peine de mort 108 3.1.3 Interdiction de la torture et autres peines ou traitements cruels, inhumains ou dégradants 109 3.1.4 Droit de ne pas être arrêté ou détenu arbitrairement 112 3.1.5 Droit à un procès équitable 113 3.1.6 Droit à des recours efficaces 115 3.1.7 Objection de conscience et service alternatif 117 3.1.8 Liberté de pensée, de conscience, de religion ou de conviction 118 3.1.9 Liberté d’association et liberté de réunion pacifique 121 3.1.10 Liberté d’expression, médias et presse libres 123 A. Provisions générales 123 B. Liberté des médias et conditions de travail des journalistes 125 C. Liberté d’expression culturelle ou artistique 133 3.1.11 Liberté de mouvement, contacts humains et regroupement familial 134 3.1.12 Respect de la vie privée et de la vie de famille 143 3.1.13 Droit à la nationalité 143 3.1.14 Droit de propriété 144 3.2 Droits économiques, sociaux et culturels 144 3.2.1 Provisions générales 144 3.2.2 Droits économiques et sociaux 146 A. Provisions générales 146 B. Droits des travailleurs 148 3.2.3 Droits culturels/héritage culturel 149 3.2.4 Droit à l’éducation 151 4. Engagements relatifs aux droits de l’homme se focalisant sur des groupes spécifiques 153 4.1 Minorités nationales 153 4.1.1 Protection des droits de l’homme et des libertés fondamentales, y compris l’égalité des chances et la non-discrimination 153 4.1.2 Participation réelle à la vie publique et politique 161 4.1.3 Identité et éducation culturelles, linguistiques et religieuses 163 4.1.4 Contacts humains, médias et presse libres 167 4.1.5 Rôle des organisations et associations 169 4.1.6 Protection contre les crimes de haine 170 4.2 Les Roms et les Sintis 171 4.2.1 Protection des droits de l’homme et des libertés fondamentales y compris l’égalité des chances et la non-discrimination 171 4.2.2 Participation réelle à la vie publique et politique 175 4.2.3 Accès à l’éducation 177 4.2.4 Questions socio-économiques 179 4.2.5 Racisme et discrimination 181 A. Lutte contre les stéréotypes 181 B. Protection contre les crimes de haine 183 4.2.6 Situations de crise et d’après crise 185

Les engagements de la dimension humaine de l’OSCE vii Contenu

4.3 Populations indigènes 186 4.4 Réfugiés, personnes déplacées, retour des migrants et apatrides 186 4.5 Travailleurs migrants 189 4.6 Personnes handicapées 194 4.7 Enfants 195 4.8 Personnel des forces militaires 196 4.9 Personnes en détention ou emprisonnées 196 5. Engagements relatifs à l’égalité, la tolérance et la non-discrimination 199 5.1 Clauses d’égalité et de non-discrimination 199 5.2 Égalité des droits entre les hommes et les femmes 200 5.3 Lutte contre les actes qui ont pour cause le préjugé, l’intolérance et la haine 205 5.3.1 Provisions générales 205 5.3.2 Instruments internationaux 214 5.3.3 Législation, application de la loi et politiques 215 5.3.4 Collecte et suivi des données 218 5.3.5 Promouvoir la tolérance, la compréhension, le respect (y compris la mémoire) 220 5.3.6 Rôles des médias 226 6. Engagements relatifs à des menaces précises pesant sur la sécurité des personnes 229 6.1 Prévention de la persécution, la violence et l’exploitation basées sur le sexe d’une personne 229 6.2 Prévention de la traite des êtres humains 230 6.2.1 Provisions générales relatives à la prévention 231 6.2.2 Enquête, application de la loi et poursuites judiciaires 242 6.2.3 Protection des victimes et provision d’assistance 247 6.3 Prévention du commerce illicite de drogues, d’armes et d’autres formes de crime organisé à l’échelle internationale 253 6.4 Prévention du terrorisme 254 6.4.1 Condamnation du terrorisme et engagement à le combattre 254 6.4.2 Respect des droits de l’homme dans la lutte contre le terrorisme 268 6.4.3 Prévention des activités terroristes sur le territoire des États participants 270 6.4.4 Extradition et poursuites judiciaires contre les personnes impliquées dans des actes de terrorisme 271

7. Engagements relatifs au droit humanitaire international 273 Index 277

viii Les engagements de la dimension humaine de l’OSCE Préambule à la seconde édition

J e suis ravi de présenter la seconde édition de notre manuel de référence des engage- ments de la dimension humaine de l’OSCE, en cette année où nous célébrons le 30e anniversaire de l’Acte Final d’Helsinki. Signé en 1975, l’Acte Final reste une pierre fon- datrice du cadre sécuritaire en Europe et dans la région de l’OSCE. Il guide également le travail de mon institution, le Bureau des institutions démocratiques et des droits de l’homme. L’Acte Final d’Helsinki fut le premier document international à reconnaître l’impor- tance de la protection des droits de l’homme et des libertés fondamentales au niveau international. C’est l’un des 10 principes fondamentaux des relations entre États, au même titre et au même statut que les règles classiques de relations internationales que nous connaissons depuis le début des temps modernes. Mais le monde a considérablement changé depuis 1975, ainsi que le cadre mis en place par l’OSCE pour la région tout entière. Depuis les événements historiques de 1989, les États européens ont pris le schéma de l’Acte Final d’Helsinki et ont développé à partir de ce schéma de base un ensemble complet de normes et de standards, en particulier en ce qui concerne les droits de l’homme. Ces droits fondamentaux, ainsi que la démocra- tie et les règles de l’État de droit sont les principaux éléments de ce que l’OSCE appelle la dimension humaine de la sécurité. À la conférence sur la dimension humaine de Copenhague en 1990, les États de l’OSCE ont posé les jalons de ce qui allait devenir le manuel de référence pour la région tout entière de l’OSCE et un acquis pour beaucoup de démocraties développées dans le monde. Jusqu’à présent, aucun projet international de cette envergure n’a pu l’égaler et il continue à nous guider dans notre travail quotidien. C’est pourquoi le cadre d’Helsinki a été développé plus en profondeur depuis, pour devenir un ensemble complet de normes. Vous trouverez tous les détails des engage- ments qui s’y rapportent dans ce recueil de textes, mais l’essence profonde de ces enga- gements réside en quelques principes de base : le respect pour les droits de l’homme et les libertés fondamentales est au cœur du concept de sécurité de l’OSCE ; les États sont responsables devant leurs citoyens et l’un envers l’autre, et ils doivent veiller à ce que ces droits et ces libertés soient respectés et protégés.

Les engagements de la dimension humaine de l’OSCE ix Préambule à la seconde édition

Les États de l’OSCE ont affirmé que le BIDDH ainsi que le Haut-commissaire pour les minorités nationales et le Représentant de la liberté des médias étaient des instru- ments essentiels pour assurer le respect des droits de l’homme, de la démocratie et de l’État de droit. En 2001, le BIDDH a publié un recueil d’engagements relatifs à la dimension humaine, afin qu’ils soient plus faciles d’accès. Ce recueil est un outil de référence inestimable pour nous tous, nous qui nous engageons à promouvoir les droits de l’homme, la démo- cratie et l’État de droit. Cependant, les nouveaux engagements et décisions de l’OSCE exigent une mise à jour permanente. Cette nouvelle édition revue et corrigée du recueil contient des sections chronologiques et thématiques, et il est maintenant publié en deux volumes, du fait de l’expansion du corpus d’engagements. Au final, tout peut se résumer à ce que le président américain Gerald Ford a dit après la signature de l’Acte Final d’Helsinki, il y a 30 ans : ce qui importe, ce n’est pas les pro- messes que l’on fait, mais celles que l’on tient. Les États participants de l’OSCE ont créé un corpus impressionnant de normes et de principes dans le domaine de la dimension humaine. J’espère que cette publication servira à promouvoir encore plus la connais- sance et la mise en œuvre des nombreux engagements que les États participants de l’OSCE ont pris, afin que leur milliard d’habitants puissent en bénéficier.

Ambassadeur Christian Strohal Directeur du Bureau des institutions démocratiques et des droits de l’ homme de l’OSCE

 Les engagements de la dimension humaine de l’OSCE Avant-propos de la première édition

D epuis ses débuts, la Conférence sur la sécurité et la coopération en Europe (CSCE), qui devint ensuite l’Organisation pour la sécurité et la coopération en Europe (OSCE), est en perpétuel changement. C’est un processus continu qui a mené à une expansion significative de ses bases normatives. Cette expansion s’est accélérée rapi- dement après la fin de la Guerre Froide, dans l’esprit d’ouverture et de changement qui caractérise la Charte de Paris pour une nouvelle Europe et d’autres documents ratifiés au début des années 1990. Depuis la signature de l’Acte Final d’Helsinki en 1975, la CSCE/OSCE a accumulé un corpus d’engagements substantiel dans le domaine des droits de l’homme, de la démo- cratie, de l’État de droit et des minorités nationales. Ces engagements, relatifs à ce que l’on appelle la dimension humaine de l’OSCE, se trouvent dans un ensemble de docu- ments en perpétuelle expansion, adoptés par les sommets de la CSCE/OSCE ainsi que d’autres sommets politiques. En conséquence, il est devenu de plus en plus difficile de recenser les succès obtenus dans le développement de nouvelles normes pour la région de la CSCE/OSCE. Dès 1992, le Sommet d’Helsinki conseillait « l’élaboration de recueils des enga- gements pris par la CSCE au titre de la dimension humaine, en vue de favoriser une meilleure compréhension pour la mise en oeuvre de ces engagements ». Suite à cela, le Bureau des institutions démocratiques et des droits de l’homme de l’OSCE (OSCE/ BIDDH) a réalisé en 1995 un recueil chronologique des engagements relatifs à la dimen- sion humaine. Ce recueil constituait un premier pas important vers un accès plus facile au corpus d’engagements de l’OSCE. Cependant, cinq ans et deux sommets de l’OSCE plus tard, cette publication est devenue obsolète. De plus, son utilité était limitée à cause de sa structure purement chronologique et de l’absence d’un index. En ce 10e anniversaire du BIDDH de l’OSCE, la principale institution au sein de l’OSCE traitant de la dimension humaine, je suis ravi de présenter au public un recueil revu et corrigé des engagements de l’OSCE concernant la dimension humaine. Il contient non seulement une mise à jour de la partie chronologique, mais aussi, pour la première fois, une partie thématique qui fait la liste de tous les engagements ayant un rapport avec la dimension humaine, thème par thème.

Les engagements de la dimension humaine de l’OSCE xi Avant-propos de la première édition

Je suis convaincu que cette publication constitue un outil qui faisait cruellement défaut, pratique et facile d’utilisation pour les gouvernements, le personnel de l’OSCE et le public, permettant d’accéder facilement aux engagements de l’OSCE selon un thème donné ou par ordre chronologique. Une des raisons du succès de l’Acte Final d’Helsinki est l’accord de tous les États signataires pour publier le document et le distribuer dans leurs pays respectifs, aussi largement que possible. Cela a permis aux citoyens des États participants de pouvoir s’informer sur les engagements que leur gouvernement avait pris et de demander des comptes à leurs dirigeants s’ils ne mettaient pas ces engagements en pratique. En publiant et en distribuant ce recueil, le BIDDH de l’OSCE souhaitait contribuer à une meilleure connaissance et une meilleure compréhension des engagements de l’OSCE dans le domaine de la dimension humaine, au sein des gouvernements de l’OSCE et de la part des citoyens et acteurs de la société civile au sein de la région de l’OSCE. J’espère donc vivement que cette publication aura pour effet d’encourager de plus amples progrès dans la mise en œuvre de ces engagements par les gouvernements des États participants de l’OSCE.

Ambassadeur Gérard Stoudmann Directeur du Bureau des institutions démocratiques et des droits de l’ homme de l’OSCE 1996-2002

xii Les engagements de la dimension humaine de l’OSCE Préface – comment utiliser ce recueil

D epuis l’Acte Final d’Helsinki en 1975, les États participants de l’OSCE, désormais au nombre de 55, ont ratifié un grand nombre d’engagements qui les rendent res- ponsables politiquement, dans le domaine de ce que l’on appelle désormais la dimen- sion humaine du concept exhaustif de sécurité de l’OSCE. Les engagements qui se trou- vent dans les sections thématiques et chronologiques de cette publication ont été sélec- tionnés à partir d’une définition du terme de dimension humaine tel qu’il est utilisé aujourd’hui, regroupant tous les aspects des droits de l’homme et des libertés fonda- mentales : la démocratie, y compris les élections démocratiques, l’exercice du gouver- nement et les institutions démocratiques, la tolérance et la non-discrimination, les règles de l’État de droit, ainsi que les minorités nationales, les contacts humains et le droit humanitaire international. De plus, cette sélection comprend les provisions des mécanismes qui servent à contrôler la mise en œuvre de ces engagements, ainsi que les missions principales des institutions de l’OSCE qui sont actives dans le domaine de la dimension humaine. Les documents utilisés pour réaliser cette publication ont été signés ou ratifiés d’une autre manière lors de plusieurs forums CSCE/OSCE de haut niveau. Même si ces docu- ments n’ont pas le caractère contractuel juridique des traités de droit international, ils représentent néanmoins des engagements politiques, adoptés par consensus, qui ren- dent chaque État participant responsable. Comme ils sont tous adoptés par consensus, ils ont d’une certaine manière un effet immédiat : ils sont immédiatement applicables et peuvent être invoqués par tout citoyen ou gouvernement de l’OSCE directement, vis-à- vis de tout gouvernement d’État participant. De plus, les engagements de l’OSCE ren- forcent les obligations établies par le droit international et les conventions internationa- les au lieu de les dupliquer, car ils représentent un engagement de bonne foi à les met- tre en œuvre. Les provisions de la dimension humaine qui se trouvent dans ce recueil sont expli- quées dans les documents qui sont nés de ces sommets, réunions de suivi, conférences sur la dimension humaine et lorsqu’ils étaient appropriés, les réunions de conseil minis- tériel depuis 1975. On y trouve aussi des documents qui ont été réalisés lors de réu-  On trouve aussi cette définition dans l’agenda de la réunion annuelle de mise en œuvre de la dimension humaine de l’OSCE.

Les engagements de la dimension humaine de l’OSCE xiii Préface

nions d’experts appropriés, puis incorporés plus tard dans le corpus d’engagements de la CSCE/OSCE lors d’autres forums. Bien que le but de cette publication soit de présenter un rapport exhaustif des bases normatives de l’OSCE dans le domaine de la dimension humaine, elle ne représente pas une tentative de produire un inventaire complet de tous les termes qui pourraient avoir un rapport de près ou de loin avec la dimension humaine. Nous voulons insister sur le fait que même si ce recueil se concentre sur la dimension humaine, et par consé- quent sur les droits de l’homme et la démocratie, les engagements de l’OSCE doivent toujours être lus et compris dans le contexte d’un concept exhaustif de sécurité, qui comprend aussi les questions politico-militaires ainsi que des aspects économiques et environnementaux. Si un engagement n’est pas mentionné dans ce recueil, cela ne veut pas dire qu’il n’est pas pertinent. Pour des raisons purement pratiques, il fallait établir une limite à un moment donné car notre intention était de produire un guide de réfé- rence facile d’utilisation plutôt qu’une encyclopédie. Ce recueil est fait pour être utilisé par des membres du gouvernement, des organisations de la société civile, des universi- taires, des étudiants ou des juristes.

xiv Les engagements de la dimension humaine de l’OSCE La dimension humaine de l’OSCE : introduction

E n 2005, L’Organisation pour la sécurité et la coopération en Europe (OSCE) a com- mémoré le 30e anniversaire de la signature de son document fondateur, l’Acte Final d’Helsinki. Depuis 1975, l’OSCE a développé un vaste ensemble de normes et standards se rapportant aux droits de l’homme, qui reflètent en général les normes et concepts traditionnels des droits de l’homme tels qu’ils sont inscrits dans d’autres déclarations et traités internationaux relatifs aux droits de l’homme. Néanmoins, en élaborant à partir de ceux-ci, l’OSCE a également développé un certain nombre de standards hautement novateurs à la fois en termes de forme et de fond. Cette publication est conçue pour rendre les engagements de l’OSCE plus accessi- bles aux citoyens comme aux membres des gouvernements, en suivant une des leçons les plus importantes que nous ait donné le processus d’Helsinki : à la base des droits de l’homme se trouve un sentiment de prise de contrôle, le «droit de connaître ses droits». Quand l’Acte Final d’Helsinki a été adopté, les États participants se sont engagés à ren- dre ce document accessible au plus grand nombre. Cela a permis la création de nom- breuses associations de protection des droits de l’homme, comme les groupes d’Hel- sinki et la Charte 77, qui ont trouvé dans le processus d’Helsinki les ressources pour accomplir leur mission et ont contribué à la chute du monopole communiste en Europe centrale et en Europe de l’Est. Le cadre des droits de l’homme de l’OSCE a donc été un des plus efficaces, et il continue à jouer un rôle important aujourd’hui. C’est un cadre original, comprenant un ensemble de documents qui, entre autres nouveautés, font des droits de l’homme une question qu’on peut légitimement traiter au niveau étatique. On trouve la base de ce cadre dans l’Acte Final d’Helsinki, mais les documents qui lui ont succédé, comme le Document de Copenhague en 1990, la Charte de Paris pour une nouvelle Europe et le Document de Moscou en 1991, ont éta- bli d’autres bases importantes dont on a besoin pour comprendre la dimension humaine de l’OSCE telle qu’elle existe aujourd’hui. Le but de cette introduction est de vous guider dans la lecture et l’utilisation de ces normes, et de vous donner un aperçu des aspects de base de la dimension humaine de l’OSCE.1 1 La Conférence pour la sécurité et la coopération en Europe (CSCE) a été rebaptisée l’Organisation pour la sécurité et la coopération en Europe (OSCE) en 1994. Pour des raisons pratiques, nous n’utiliserons que le terme OSCE dans ce texte.

Les engagements de la dimension humaine de l’OSCE xv La dimension humaine de l’OSCE : introduction

A. Les fondements 1. Les droits de l’homme et le concept global de sécurité de l’OSCE

L’OSCE a été créée dans le but d’assurer la sécurité. Cependant, elle ne se limite pas aux questions militaires, de désarmement, ou de frontières. S’appuyant sur un concept élargi de la sécurité, elle s’occupe également des droits de l’homme. Pour l’OSCE, la sécurité est plus que la simple absence de guerre. L’intention des États participants de l’OSCE était plutôt de créer un cadre d’ensemble pour la paix et la sta- bilité en Europe. L’un des dix principes directeurs de l’Acte Final d’Helsinki est le «res- pect des droits de l’homme et des libertés fondamentales, y compris la liberté de pen- sée, de conscience, de religion ou de conviction.» Cela constitue un pas important dans l’histoire de la protection des droits de l’homme. Pour la première fois, les principes des droits de l’homme ont été inclus comme élément explicite et intégral d’un cadre sécuri- taire régional, au même titre que les questions politico-militaires et économiques. Cette reconnaissance a été renforcée par de nombreux documents ultérieurs qui vont dans ce sens. C’est donc un fait bien établi, qui n’est pas remis en question. Il n’y a pas de hié- rarchie au sein de ces principes, et aucun gouvernement ne peut prétendre assurer la sécurité politique et économique sans aborder la question des droits de l’homme et de la démocratie. L’histoire récente prouve la validité du concept de l’OSCE selon lequel une société libre, qui permet à tout le monde de participer à la vie publique, est un rempart contre les conflits et l’instabilité. Par exemple, l’exclusion d’individus issus de certains grou- pes au sein de la société, parfois sur des critères ethniques, provoque des tensions et a parfois mené au conflit armé. L’impact en termes de sécurité des crises impliquant un déplacement de réfugiés, qui sont souvent le résultat d’un abus massif des droits de l’homme, en est un autre exemple. Dans la terminologie de l’OSCE, le terme de dimension humaine décrit un ensemble de normes et d’activités relatives aux droits de l’homme, à la démocratie et à l’État de droit, qui est considéré au sein de l’OSCE comme une des trois dimensions principales de la sécurité - les deux autres étant la dimension politico-militaire et économique et les questions environnementales. Le terme indique aussi que les normes de l’OSCE dans ce domaine sont plus larges que le domaine juridique traditionnel des droits de l’homme.

2. Le « processus » de l’OSCE

Depuis ses débuts, l’OSCE suit une méthode de « processus ». L’Acte Final d’Helsinki assure les conférences et réunions de suivi. Ceci est très important pour comprendre dans quel cadre s’inscrivent les droits de l’homme au sein de l’OSCE. Cela veut dire tout d’abord qu’il y a un forum pour discuter de la mise en œuvre des standards adoptés lors des réunions précédentes. Ensuite, cela conduit l’OSCE à pro- duire une série de documents qui précisent et élaborent les engagements de la dimen- sion humaine adoptés lors des précédents textes. Par conséquent, l’OSCE a développé un processus de création normative extrêmement flexible et dynamique dans le domaine des droits de l’homme, un processus qui est en perpétuel changement. Parmi les inno-

xvi Les engagements de la dimension humaine de l’OSCE  La dimension humaine de l’OSCE : introduction

vations de ces dernières années, on peut citer la reconnaissance du trafic de personnes comme une question relevant des droits de l’homme, alors qu’il était auparavant sou- vent traité dans le contexte du crime organisé (Conseil Ministériel de Vienne, 2000). Les engagements de l’OSCE prennent en général la forme de documents ratifiés par consensus lors de sommets de l’OSCE ou de réunions ministérielles. Chaque réunion se déroule dans un climat politique et un contexte particuliers. Il n’est donc pas sur- prenant que les sommets de l’OSCE aient joué des rôles différents dans la naissance de ces nouveaux engagements. Tandis que certaines réunions, en particulier au début des années 1990, ont engendré un vaste ensemble de nouvelles normes importantes, d’autres se sont limitées à des changements mineurs et des ajouts. Cette élaboration progressive a produit une quantité importante de documents OSCE. Il n’est donc pas toujours facile pour les juristes de savoir quelles normes s’ap- pliquent à une situation donnée, en particulier parce que chaque document contient, à des degrés divers, des répétitions et des innovations. L’utilisateur doit se souvenir que c’est l’ensemble des documents qui forment le cadre actuel de l’OSCE. Un document ne devient donc pas obsolète à mesure que de nouveaux documents sont ratifiés. Les docu- ments se construisent l’un par rapport à l’autre, et constituent ce que l’on peut appeler l’acquis de l’OSCE. Ils ont été ratifiés par consensus et de ce fait, ils engagent politique- ment tous les États participants. Cela s’applique aussi aux États participants admis plus tard à l’OSCE, car ils doivent accepter cet acquis au moment de leur admission. Par conséquent, l’utilisateur ne doit pas se baser sur un seul document, mais doit plu- tôt consulter l’ensemble des documents existants, afin d’estimer l’envergure réelle des engagements sur un droit ou une liberté fondamentale spécifiques. Souvent, un docu- ment plus ancien ne fait que stipuler un principe général, qui est ensuite développé en détail dans les documents plus récents. Cependant, puisque les engagements et les documents se construisent l’un par rapport à l’autre, un engagement énoncé dans un document plus ancien ne perd pas de sa force si un document plus récent ne fait que mentionner ce droit de manière générale. En même temps, chaque document dans son ensemble reflète un contexte histori- que particulier, et sa structure suit une logique qui met les différentes parties du docu- ment dans un contexte plus large. La lecture du document dans son intégralité peut donc apporter autant d’informations importantes quant à la compréhension et l’inter- prétation des normes concernées. Cela explique l’approche duale de ce recueil, qui est à la fois thématique et chronologique.

3. Les engagements de la dimension humaine et la démocratie plurielle fondée sur l’État de droit

Dans un certain nombre de cas, les engagements de la dimension humaine de l’OSCE vont bien au-delà du niveau « traditionnel » des instruments contractuels des droits de l’homme. Dans les traités traditionnels relatifs aux droits de l’homme, les droits des individus ou des groupes sont énoncés, et les États ont pour obligation de respecter et/ ou de garantir ces droits. Les États sont ensuite libres de décider comment ils souhai- tent mettre en œuvre ces obligations.

Les engagements de la dimension humaine de l’OSCE xvii La dimension humaine de l’OSCE : introduction

La dimension humaine de l’OSCE va bien plus loin en faisant le lien entre les droits de l’homme et le système politique et institutionnel d’un État. Par définition, les États de l’OSCE acceptent à travers ces engagements de la dimension humaine le fait que la démocratie plurielle fondée sur l’État de droit est le seul système de gouvernement à même de garantir efficacement la protection des droits de l’homme. Cela explique pourquoi la dimension humaine de l’OSCE a été décrite comme un ordre public commun paneuropéen. Autrement dit, l’OSCE n’est pas simplement une organisation de 55 États participants, mais une « communauté de valeurs », une cou- tume normative et une pratique développées en commun. Ce lien apparaît aussi dans l’engagement fort de respecter l’État de droit et dans sa formulation même, celle d’un concept fondé sur la dignité de la personne humaine et sur un système de droits garan- tis par des structures légales.

4. Des engagements politiques qui responsabilisent les États

Le processus de l’OSCE est essentiellement un processus politique ; il ne crée pas de normes ou de principes que l’on peut faire appliquer par la loi. Contrairement à beau- coup d’autres documents relatifs aux droits de l’homme, les engagements de la dimen- sion humaine de l’OSCE responsabilisent les États politiquement et non juridiquement. C’est une distinction importante, car cela limite les recours à la justice dans l’applica- tion des normes de l’OSCE. Autrement dit, les engagements de l’OSCE ne peuvent pas être appliqués par un tribunal. Cependant, il ne faut pas faire l’erreur de penser que ces engagements manquent de force contractuelle. La distinction réside entre le juridique et le politique, non entre contractuel et non contractuel. Cela veut dire que les enga- gements de l’OSCE sont plus qu’une simple déclaration de volonté ou de bonnes inten- tions ; ils sont en fait une promesse politique d’obéir à ces normes. Alors que les délibérations autour des documents internationaux à valeur légale pren- nent en général un temps considérable avant que les différentes parties se mettent d’ac- cord sur un texte final, et que le texte final est soumis à une ratification et à des réserves, ce n’est pas le cas pour les documents de l’OSCE. Leur nature politique constitue une situation unique, car une fois que les États ont abouti à un consensus, les décisions sont applicables immédiatement et en principe, elles lient contractuellement tous les États de l’OSCE (c’est ce qu’on appelle le principe d’universalité). Cela permet à l’OSCE de réagir rapidement à de nouveaux besoins. Par exemple, quand les violations des droits de l’homme envers les minorités ont augmenté dans les années 1990, c’est l’OSCE qui a réagi en premier et a esquissé une vaste série de nor- mes dans le domaine de la protection des minorités. Plus tard, ces normes politiques ont servi de cadre à la Convention de protection des minorités nationales du Conseil de l’Europe.

5. Les droits de l’homme, une question internationale

Autre aspect fondamental de la dimension humaine de l’OSCE : les droits de l’homme et la démocratie plurielle ne sont pas considérés comme les affaires intérieures d’un État.

xviii Les engagements de la dimension humaine de l’OSCE  La dimension humaine de l’OSCE : introduction

Les États participants ont insisté sur le fait que les questions relatives aux droits de l’homme, aux libertés fondamentales, à la démocratie et à l’État de droit étaient des questions de niveau international, car le respect de ces droits et de ces libertés constitue un des fondements de l’ordre international. D’ailleurs, les États participants ont déclaré de manière « catégorique et irrévocable » que « les engagements pris dans le domaine de la dimension humaine de l’OSCE sont des questions d’importance directe et légitime pour tous les États participants, et ils ne font pas exclusivement partie des affaires inté- rieures de l’État concerné » (Document de Moscou, 1991). C’est pourquoi les États participants de l’OSCE ne sont plus en mesure d’invoquer le principe de non-intervention pour éviter de parler des problèmes de droits de l’homme à l’intérieur de leur pays. Cela explique pourquoi l’OSCE n’est pas seulement une com- munauté de valeurs, mais aussi une communauté de responsabilité. Et nous voulons insister sur le fait que cette responsabilité ne se limite pas seulement au droit d’émet- tre des critiques envers les États qui auraient violé les engagements de la dimension humaine, mais qu’elle comprend aussi le devoir de s’entraider pour résoudre des problè- mes spécifiques.

6. Limites et rapport avec les traités internationaux relatifs aux droits de l’homme

Les engagements de l’OSCE reflètent les droits de l’homme traditionnels et les liber- tés fondamentales, ainsi que certains domaines qui vont au-delà du périmètre des droits de l’homme traditionnels. Comme dans d’autres traités relatifs aux droits de l’homme, une des questions centrales qui se posent porte sur l’envergure et les limites de ces droits. C’est important pour tout juriste qui souhaite déterminer si un droit a été violé ou non. Certaines libertés énoncées par l’OSCE ont des clauses restrictives bien précises. Cependant, le Document de Copenhague de l’OSCE énonce une règle générale importante pour les droits qui sont mentionnés dans ce document. Ils ne seront sou- mis à aucune restriction, sauf celles qui sont établies par la loi et qui sont en cohérence avec d’autres obligations énoncées par le droit international, comme le Pacte interna- tional sur les droits civils et politiques. Les restrictions ne doivent pas être appliquées de manière arbitraire, et elles doivent toujours être comprises comme une exception à la règle générale de respect de la liberté individuelle. Toute limite doit être strictement proportionnelle à l’objectif de la loi. Ce test de proportionnalité exige une interprétation restreinte, particulièrement à cause du fait que toute interférence doit être comparée à la valeur considérable de ces libertés fondamentales pour une société libre et ouverte.

B. Institutions et mise en œuvre 1. La responsabilité de mettre en œuvre les engagements de la dimension humaine de l’OSCE

Le cadre général des droits de l’homme décrit ci-dessus existe dans le but de profiter à tous ceux qui habitent dans la région de l’OSCE et de fait, il décrit les droits de l’homme et les libertés fondamentales comme des « droits imprescriptibles de tous les indivi-

Les engagements de la dimension humaine de l’OSCE xix La dimension humaine de l’OSCE : introduction

dus ». Ces droits sont garantis en premier chef par les États participants de l’OSCE. Tout comme d’autres traités internationaux relatifs aux droits de l’homme, les engage- ments de la dimension humaine de l’OSCE s’adressent aux États participants. Ils renfor- cent son principe directeur en mettant l’accent sur le fait que la protection et la promo- tion des droits de l’homme et des libertés fondamentales est « la première responsabi- lité d’un gouvernement » (Charte de Paris, 1990). Depuis le début, il est clair que la définition de normes en elle-même n’est pas tou- jours suffisante pour mettre en œuvre de manière efficace les engagements de la dimen- sion humaine. Les procédures internationales doivent jouer un rôle complémentaire important à ce sujet. En conséquence, l’OSCE a créé une série de procédures, conféren- ces et institutions qui permettent un contrôle et assistent la mise en œuvre des enga- gements de la dimension humaine de l’OSCE. Peu importe que la mise en œuvre des engagements de la dimension humaine se fasse de manière explicite ou suivie dans le contexte de l’OSCE, cela va sans dire. De même, l’OSCE fonctionne côte à côte avec une multitude d’autres cadres et mécanismes internationaux dédiés à la protection et à la promotion des droits de l’homme, et elle coopère avec eux. Contrairement à d’autres traités relatifs aux droits de l’homme,2l’OSCE n’a pas créé de tribunal ou d’institution permettant une action juridique individuelle afin d’assurer la mise en œuvre des engagements de l’OSCE. Cela reflète le caractère politique du pro- cessus de l’OSCE et la volonté de ne pas répéter les mécanismes existants. Au contraire, l’OSCE renforce ces mécanismes essentiels et invite les États participants à souscrire à ces mécanismes et à se conformer aux normes établies par d’autres organisations inter- nationales. Il est important de noter également que l’absence d’un processus de plainte individuelle n’empêche pas de porter des cas individuels à l’attention des institutions politiques de l’OSCE.

2. Sommets et autres réunions de suivi

Comme il a été dit, l’Acte Final d’Helsinki prévoyait des conférences de suivi, mon- trant ainsi une compréhension de la nécessité d’un dialogue continu pour que l’accord entre en vigueur. Cette méthode de processus continu a créé au fil des années un sys- tème sophistiqué de sommets politiques et autres conférences, où l’on débat de la mise en œuvre des engagements de l’OSCE. 3** Cette structure complexe de sommets, conférences et séminaires engendre deux effets importants. Tout d’abord, cela permet aux États participants d’entreprendre un pro- cessus dynamique de création de normes. Les États participants peuvent réagir rapide- ment aux nouveaux besoins et élaborer à partir des engagements précédents de l’OSCE 2Voir par exemple la Convention européenne sur les droits de l’homme, qui a établi la Cour européenne des droits de l’homme, ou le Pacte international des droits civils et politiques des Nations Unies, qui a créé le Comité des droits de l’homme des Nations Unies. 3**Les sommets de l’OSCE et les réunions des conseils ministériels adoptent en général de nouvelles déclarations et de nouveaux documents. Des conférences de révision précèdent les sommets de l’OSCE. On y discute de la conformité aux normes OSCE et l’on y prépare le texte final pour qu’il soit adopté au sommet suivant. Les réunions de mise en œuvre de la dimension humaine de l’OSCE ont lieu les années où aucun sommet de l’OSCE n’est prévu, et elles constituent un forum pour débattre de la mise en œuvre des engagements de la dimension humaine de l’OSCE. De plus, un séminaire sur la dimension humaine et trois réunions supplémentaires sur la dimension humaine sont organisées chaque année. Pour de plus amples informations, voir OSCE Handbook, 4e édition, Vienne 2000.

xx Les engagements de la dimension humaine de l’OSCE  La dimension humaine de l’OSCE : introduction

pour préciser leur application. Ensuite, cette structure offre un forum de discussion pour débattre de la mise en œuvre réelle des engagements de la dimension humaine par les États participants de l’OSCE. Ceci rappelle le principe selon lequel l’obéissance aux engagements de l’OSCE est un sujet de préoccupation direct et légitime pour tous les États participants de l’OSCE, et ne relève pas des affaires intérieures d’un État. Une des caractéristiques importantes de ces réunions de l’OSCE concernant la dimension humaine est leur ouverture à la participation active des organisations non gouvernementales (ONG). Ainsi, les ONG peuvent participer – et elles le font – à la dis- cussion sur les problèmes relatifs à la mise en œuvre des engagements de la dimension humaine de l’OSCE, et elles peuvent émettre des suggestions sur la manière de résou- dre ces problèmes.

3. Mécanisme de la dimension humaine

En plus de ces réunions régulières, l’OSCE a aussi créé ce que l’on appelle le méca- nisme de la dimension humaine, le Mécanisme de Vienne4et le Mécanisme de Moscou, 5**ce dernier constituant en partie un développement du Mécanisme de Vienne. Ensemble, ils définissent un processus de supervision de la mise en œuvre des engage- ments de la dimension humaine, qui peut être invoqué ad hoc par un individu ou un État participant. Le Mécanisme de Vienne permet à un État participant, par le biais d’un ensemble de procédures, de soulever des questions relatives à la dimension humaine dans un autre État participant. Le Mécanisme de Moscou part de là et va plus loin, en donnant la pos- sibilité d’établir au cas par cas des missions d’experts indépendants, pour aider à résou- dre un problème spécifique relevant de la dimension humaine. Cela inclut le droit d’en- quêter sur des violations supposées des engagements de la dimension humaine, ce qui peut même se faire dans certaines circonstances exceptionnelles sans le consentement de l’État accusé. Dans la pratique, le mécanisme de la dimension humaine est rarement appliqué, en partie parce que l’OSCE est devenue une organisation fonctionnant à plein temps, et en partie aussi à cause des considérations politiques qu’implique le recours à de tels méca- nismes ad hoc.6***

4. Les institutions de l’OSCE ayant un rapport avec la dimension humaine

Se démarquant de la méthode « conférence » de ses premières années, l’OSCE a établi un certain nombre d’institutions permanentes pour aider les États participants à mettre en œuvre les engagements de la dimension humaine de l’OSCE. Ces institutions jouent un rôle de plus en plus important. Vous trouverez ci-dessous un aperçu de base de ces institutions, sans avoir une description détaillée de leur rôle et de leurs activités.

4 Tel qu’il est défini dans le Document de Clôture de Vienne en 1989. 5**Le Mécanisme de Moscou a été établi par accord lors de la dernière réunion de la Conférence sur la dimension humaine de Moscou (1991). 6***Cependant, l’institution responsable au sein de l’OSCE, Le Bureau des institutions démocratiques et des droits de l’homme, continue à tenir à jour une liste d’experts, comme l’exige le Mécanisme de Moscou.

Les engagements de la dimension humaine de l’OSCE xxi La dimension humaine de l’OSCE : introduction

A. Le Bureau des institutions démocratiques et des droits de l’homme Créé à l’origine sous le nom de Bureau des élections libres en 1990, le Bureau des ins- titutions démocratiques et des droits de l’homme (BIDDH) se trouve à Varsovie, et c’est l’institution principale au sein de l’OSCE pour ce qui est de la dimension humaine. Le Document d’Helsinki définit la mission du BIDDH, qui est d’aider les États participants de l’OSCE à « assurer le respect total des droits de l’homme et des libertés fondamenta- les, à respecter la règle de l’État de droit, à promouvoir les principes démocratiques et… à construire, renforcer et protéger les institutions démocratiques ainsi que promouvoir la tolérance au sein de la société ». En accord avec sa mission et ses fonctions, citées dans plusieurs documents, le BIDDH encourage les processus électoraux démocratiques par une observation appro- fondie des élections, réalise des projets d’aide aux élections mettant en valeur la démo- cratie participative quand elle a un sens, et aide les États participants à mettre en œuvre leurs engagements de la dimension humaine, en leur fournissant une expertise et un soutien pratique pour l’élaboration d’institutions démocratiques. Ceci se fait par des programmes à long terme qui renforcent l’État de droit, le gouvernement démocrati- que et la société civile. Il aide aussi les missions de terrain de l’OSCE dans les activi- tés relatives à la dimension humaine en offrant formation, échange d’expérience, coor- dination régionale ; il contribue à donner des avertissements anticipés et à prévenir les conflits en contrôlant la mise en œuvre des engagements de la dimension humaine par les États participants. Dans cet objectif, il offre aussi une formation régulière aux droits de l’homme pour les membres de gouvernements, de la société civile ou le personnel de l’OSCE. Le BIDDH aide aussi les États participants à mettre en œuvre les obligations juridi- ques internationales et les engagements de l’OSCE concernant le terrorisme, afin de se conformer aux normes internationales en matière de droits de l’homme et de mettre en œuvre les engagements concernant la tolérance et la non-discrimination. Dans ce contexte, il soutient aussi les efforts faits pour répondre à et lutter contre les crimes de haine, les incidents racistes, l’anti-Sémitisme et tout autre forme d’intolérance, y com- pris envers les Musulmans. Le BIDDH sert de point de contact pour les questions Rom et Sinti, et il cherche à promouvoir l’intégration totale des groupes Rom et Sinti dans les sociétés où ils vivent. Dans toutes ses activités, le BIDDH développe des politiques et des actes qui assurent la parité et il met en place des activités conçues pour améliorer la situation des femmes dans la région de l’OSCE. Afin de structurer ses activités concernant la dimension humaine, il organise des réunions régulières, qui font l’inventaire des engagements de la dimension humaine de l’OSCE et donnent des conseils sur la marche à suivre. Dans toutes ses activités, le BIDDH fait appel à un réseau de partenaires actifs dans des domaines précis, y compris les organisations non gouvernementales des droits de l’homme internationales et régio- nales, ainsi que les organisations internationales, en particulier le Bureau du Haut-com- missaire pour les droits de l’homme aux Nations Unies, et le Conseil de l’Europe.

B. Le Haut-commissaire pour les minorités nationales Le Haut-commissaire pour les minorités nationales de l’OSCE, poste créé à La Haye en 1992, a pour tâche d’identifier et de chercher à résoudre dès le départ les tensions

xxii Les engagements de la dimension humaine de l’OSCE  La dimension humaine de l’OSCE : introduction

ethniques qui pourraient mettre en danger la paix, la stabilité ou les relations amicales entre les États participants. Agissant indépendamment de toutes les parties impliquées, le Haut-commissaire effectue des missions sur place et fait de la diplomatie préventive au tout début des ten- sions. Hormis la recherche d’informations prises à la source, le Haut-commissaire cher- che à promouvoir le dialogue, la confiance et la coopération.

C. Le représentant de la liberté des médias Le représentant de la liberté des médias aide les États participants à développer des médias libres, indépendants et pluriels, car c’est un des éléments de base d’une démocra- tie plurielle qui fonctionne bien. Le représentant, dont le bureau est à Vienne, observe les changements dans le domaine des médias au sein de tous les États participants, et il recommande et encourage l’obéissance aux principes et engagements de l’OSCE appro- priés à chaque situation.

C. Quelques remarques en conclusion Les États participants de l’OSCE ont créé un corpus impressionnant de normes et de principes dans le domaine de la dimension humaine. Les documents de l’OSCE consti- tuent une source abondante d’engagements relatifs aux droits de l’homme, qui ont fait de cette organisation la plus grande novatrice dans ce domaine. Nous espérons que cette publication aidera à promouvoir encore plus la connaissance ainsi que la mise en œuvre des nombreux engagements, souvent extrêmement détaillés, que les États parti- cipants ont accepté en entrant dans la sphère des droits de l’homme, des libertés fonda- mentales, de l’État de droit et de la démocratie.

Les engagements de la dimension humaine de l’OSCE xxiii Documents de l’OSCE qui sont mentionés dans ce recueil de texts Acte finale de la Conférence sur la sécurité et la coopération en Europe, Helsinki, 1 aout 1975 (ci-après Helsinki 1975)

Document de clôture de la réunion de Madrid — La deuxième réunion de suivi, Madrid, 6 septembre 1983 (ci-après Madrid 1983)

Document de clôture de la réunion de Vienne — La troisième réunion de suivi, Vienna, 15 janvier 1989 (ci-après Vienne 1989)

Document de la réunion de Copenhague de la conférence sur la dimension humaine de la CSCE, Copenhague, 29 juin 1990 (ci-après Copenhague 1990)

Charte de Paris pour une nouvelle Europe/Document complémentaire relatif à la mise en application de certaines dispositions contenues dans la charte de Paris pour une nou- velle Europe, Paris, 21 novembre 1990 (ci-après Paris 1990)

Document du colloque de Cracovie sur le patrimoine culturel des Etats participants à la CSCE, Cracovie, 6 juin 1991 (ci-après Cracovie 1991)

Rapport de la réunion d’experts de la CSCE sur les minorités nationales, Genève, 19 juillet 1991 (ci-après Genève 1991)

Document de la réunion de Moscou de la conférence sur la dimension humaine de la CSCE, Moscou, 3 octobre 1991 (ci-après Moscou 1991)

Document de la deuxième réunion du Conseil de la CSCE, Prague, 30-31 janvier 1992 (ci-après Prague 1992)

Document de clôture de Helsinki — La quatrième réunion de suivi, Helsinki, 10 July 1992 (ci-après Helsinki 1992)

Document de la troisième réunion du Conseil de la CSCE, Stockholm, 14-15 décembre 1992 (ci-après Stockholm 1992)

Document de la quatrième réunion du Conseil de la CSCE, Rome, 30 novembre-1 décembre 1993 (ci-après Rome 1993)

Document de Budapest, 6 décembre 1994 (ci-après Budapest 1994)

Les engagements de la dimension humaine de l’OSCE xxv Documents de l’OSCE qui sont mentionés dans ce recueil de texts

Document de Lisbonne, Lisbonne, 3 décembre 1996 (ci-après Lisbonne 1996)

Document de la sixième réunion du Conseil ministériel, Copenhague, 18-19 décembre 1997 (ci-après Copenhague 1997)

Document de la septième réunion du Conseil ministériel, Oslo, 2-3 décembre 1998 (ci- après Oslo 1998)

Document d’Istanbul, Istanbul, 19 novembre 1999 (ci-après Istanbul 1999)

Document de la huitième réunion du Conseil ministériel, Vienne, 27-28 novembre 2000 (ci-après Vienne 2000)

Document de la neuvième réunion du Conseil ministériel, Bucarest, 3-4 décembre 2001 (ci-après Bucarest 2001)

Document de la dixième réunion de la Conseil ministériel, Porto, 6-7 Décembre 2002 (ci-après Porto 2002)

Document de la onzième réunion de la Conseil ministériel, Maastricht, 1-2 décembre 2003 (ci-après Maastricht 2003)

Document de la douzième réunion du Conseil ministériel, Sofia, 6-7 Décembre 2004 (ci-après Sofia 2004)

xxvi Les engagements de la dimension humaine de l’OSCE  I. Provisions générales relatives à la dimension humaine 1. Introduction à la dimension humaine

1.1 La nature et l’importance de la dimension humaine

Helsinki 1975 (Questions relatives à la sécurité en Europe : 1. (a) Déclaration sur les principes régissant les relations mutuelles des Etats participants ; Principes VII-IX) VII. Respect des droits de l’homme et des libertés fondamentales, y compris la liberté de pensée, de conscience, de religion ou de conviction (…)

Les Etats participants reconnaissent l’importance universelle des droits de l’homme et des libertés fondamentales, dont le respect est un facteur essentiel de la paix, de la jus- tice et du bien-être nécessaires pour assurer le développement de relations amicales et de la coopération entre eux, comme entre tous les Etats.

(…)

IX. Coopération entre les Etats Ils s’efforcent, en développant leur coopération sur un pied d’égalité, de faire progres- ser la compréhension et la confiance mutuelles, les relations amicales et de bon voisi- nage entre eux, la paix internationale, la sécurité et la justice. Ils s’efforcent également, en développant leur coopération, d’améliorer le bien‑être des peuples et de contribuer à la satisfaction de leurs aspirations grâce, entre autres, aux avantages résultant d’une connaissance mutuelle accrue et des progrès et réali­sations dans les domaines d’ordre économique, scientifique, technologique, social, culturel et humanitaire. Ils prennent des mesures propres à créer des conditions permettant de rendre ces avantages acces- sibles à tous ; ils prennent en considération l’intérêt de tous dans la réduction des dif- férences entre les niveaux de développement économique, et notamment l’intérêt des pays en voie de développement du monde entier.

Les engagements de la dimension humaine de l’OSCE  Introduction à la dimension humaine Pa rt i e I

Copenhague 1990 (Préambule) Les Etats participants expriment leur conviction que le respect total des droits de l’homme et des libertés fondamentales, le développement de sociétés se fondant sur une démocratie pluraliste et l’Etat de droit sont des conditions préalables nécessaires pour faire progresser la mise en place d’un ordre durable de paix, de sécurité, de justice et de coopération qu’ils cherchent à établir en Europe.

(…)

I (1) Les Etats participants expriment leur conviction que la protection et la promotion des droits de l’homme et des libertés fondamentales sont une des tâches essentielles de l’Etat et réaffirment que la reconnaissance de ces droits et libertés est le fondement de la liberté, de la justice et de la paix.

(…)

V (41) Les Etats participants réaffirment leur engagement à l’égard de la dimension humaine de la CSCE et soulignent son importance en tant que partie intégrante d’une approche équilibrée de la sécurité et de la coopération en Europe. (…)

Paris 1990 (Une nouvelle ère de démocratie, de paix et d’unité) Nous déclarons que notre respect des droits de l’homme et des libertés fondamentales est irrévocable. (…)

Helsinki 1992 (Déclaration du sommet) 6. Nous nous félicitons de l’engagement pris par tous les Etats participants de partager nos valeurs communes. Le respect des droits de l’homme et des libertés fondamentales, y compris des droits des personnes appartenant à des minorités nationales, la démocra- tie, l’Etat de droit, la liberté économique, la justice sociale et la responsabilité en matière d’environnement constituent nos objectifs communs. Ils sont imprescriptibles.

(…)

7. Nous confirmons la validité des principes directeurs et des valeurs communes ins- crits dans l’Acte final de Helsinki et dans la Charte de Paris. Ils sont la base des respon- sabilités des Etats l’un envers l’autre et des gouvernements envers leur peuple. Ils sont la conscience collective de notre communauté.

(…)

21. Notre approche se fonde sur notre conception globale de la sécurité telle qu’elle res- sort de l’Acte final. Cette conception établit une relation entre le maintien de la paix et le respect des droits de l’homme et des libertés fondamentales. Elle crée un lien entre,

 Les engagements de la dimension humaine de l’OSCE Pa rt i e I La nature et l’importance de la dimension humaine

d’une part, la solidarité et la coopération dans les domaines de l’économie et de l’envi- ronnement et, d’autre part, les relations pacifiques entre les Etats. Nécessaire lorsque l’objectif était de réduire la confrontation, cette conception garde toute sa validité lors- qu’il s’agit de gérer le changement.

Helsinki 1992 (Décisions : VI. La dimension humaine) (2) Les Etats participants sont fermement déterminés à assurer le plein respect des droits de l’homme et des libertés fondamentales, à observer les règles de l’Etat de droit, à promouvoir les principes de la démocratie et, à cet égard, à édifier, renforcer et pro- téger les institutions démocratiques ainsi qu’à favoriser la tolérance à tous les niveaux de la société.

(…)

Budapest 1994 (Déclaration du sommet) 14. Nous confirmons l’importance de la dimension humaine dans l’ensemble des acti- vités de la CSCE. Le respect des droits de l’homme et des libertés fondamentales, de la démocratie et de l’Etat de droit représente une composante essentielle dans la région de la CSCE en matière de sécurité et de coopération. Ceci doit rester un objectif primor- dial de l’action de la CSCE (…) Nous soulignons l’importance des contacts humains pour mettre fin aux divisions héritées du passé.

Budapest 1994 (Décisions : VIII. La dimension humaine) 2. Les droits de l’homme et les libertés fondamentales, l’Etat de droit et les institutions démocratiques sont les fondements de la paix et de la sécurité, et contribuent pour une large part à la prévention des conflits dans un concept global de la sécurité. La pro- tection des droits de l’homme, y compris les droits des personnes appartenant à des minorités nationales, est un fondement essentiel des sociétés civiles démocratiques. Le non‑respect de ces droits a, dans certains cas graves, favorisé l’extrémisme, l’instabilité régionale et les conflits. (…)

Istanbul 1999 (Charte de sécurité européenne : II. Nos fondements communs) 7. Nous réaffirmons notre attachement plein et entier à la Charte des Nations Unies, à l’Acte final de Helsinki, à la Charte de Paris et à tous les autres documents de l’OSCE auxquels nous avons souscrit. Ces documents représentent nos engagements communs et sont le fondement de notre travail. (…) Leur mise en oeuvre de bonne foi est essen- tielle pour les relations entre les Etats, entre les gouvernements et leurs peuples ainsi qu’entre les organisations dont ces Etats sont membres. (…) Nous considérons ces enga- gements comme notre acquis commun (…)

(…)

9. Nous développerons nos relations dans le respect du concept de sécurité commune et globale et dans un esprit de partenariat, de solidarité et de transparence. La sécurité de chaque Etat participant est indissociablement liée à celle de tous les autres. Nous traite-

Les engagements de la dimension humaine de l’OSCE  Introduction à la dimension humaine Pa rt i e I

rons les dimensions humaine, économique, politique et militaire de la sécurité comme un tout.

Porto 2002 (Déclaration ministérielle) 3. (…) notre Organisation doit élaborer de nouvelles réponses qui couvrent et renfor- cent les trois dimensions de notre approche globale. Notre action visant à promouvoir la paix et la stabilité doit aller de pair avec notre détermination à assurer le plein respect des droits de l’homme, des libertés fondamentales et de l’état de droit, et à renforcer les conditions essentielles à un développement durable dans tous nos pays.

Maastricht 2003 (Stratégie de l’OSCE visant à faire face aux menaces pour la sécurité et la stabilité au XXIe siècle) 4. Le respect des droits de l’homme et des libertés fondamentales, de la démocratie et de la primauté du droit est la pierre angulaire du concept de sécurité globale de l’OSCE. Des institutions démocratiques fortes et la primauté du droit jouent un rôle important dans la prévention de l’apparition de menaces. Une administration publique déficiente et l’incapacité des Etats à mettre en place des institutions démocratiques appropriées et opérationnelles qui soient en mesure de promouvoir la stabilité peuvent, en soi, consti- tuer un terrain favorable pour toute une série de menaces. De même, les violations sys- tématiques des droits de l’homme et des libertés fondamentales, notamment des droits des personnes appartenant à des minorités nationales, peuvent engendrer une vaste gamme de menaces potentielles.

(…)

8. Dans ce contexte, il est clair que l’approche globale de la sécurité propre à l’OSCE, qui englobe les dimensions politico‑militaire, économico‑environnementale et humaine, reste entièrement valable et qu’il conviendrait de la conserver et de la renforcer encore davantage. (…)

9. (…) Le non‑respect du droit international et des normes et principes de l’OSCE, ainsi que divers facteurs au sein des dimensions politico‑militaire, économico‑environne- mentale et humaine, sont à la base des causes immédiates des conflits violents.

1.2 La dimension humaine comme question internationale directe et légitime

Moscou 1991 (Préambule) Les Etats participants soulignent que les questions relatives aux droits de l’homme, aux libertés fondamentales, à la démocratie et à l’Etat de droit sont un sujet de préoccupa- tion internationale car le respect de ces droits et libertés constitue l’un des fondements de l’ordre international. Ils déclarent catégoriquement et irrévocablement que les enga- gements contractés dans le domaine de la dimension humaine de la CSCE sont un sujet de préoccupation directe et légitime pour tous les Etats participants et qu’ils ne relèvent pas exclusivement des affaires intérieures de l’Etat en cause.

 Les engagements de la dimension humaine de l’OSCE Pa rt i e I La dimension humaine comme question internationale directe et légitime

Lisbonne 1996 (Déclaration sur un modèle de sécurité commun et globale pour l’Eu- rope du XXIe siècle) 5. Nous reconnaissons que, dans le cadre de l’OSCE, les Etats sont redevables envers leurs citoyens et responsables les uns envers les autres de l’application de leurs engage- ments.

Istanbul 1999 (Charte de sécurité européenne : II. Nos fondements communs) 7. (…) Tous les engagements pris au titre de l’OSCE, sans exception, s’appliquent de façon égale à chaque Etat participant. (…) Nous considérons ces engagements comme notre acquis commun et estimons donc qu’ils sont d’un intérêt immédiat et légitime pour tous les Etats participants.

Les engagements de la dimension humaine de l’OSCE  2. Mise en œuvre des engagement de la dimension humaine

2.1 Obligation de mise en œuvre

Helsinki 1975 (Questions relatives à la sécurité en Europe : 1. (a) Déclaration sur les principes régissant les relations mutuelles des Etats participants ; Principes VII-X) VII. Respect des droits de l’homme et des libertés fondamentales, y compris la liberté de pensée, de conscience, de religion ou de conviction [Les Etats participants] (…) respectent constamment ces droits et libertés dans leurs relations mutuelles et s’efforcent conjointement et séparément, y compris en coopéra- tion avec les Nations Unies, d’en promouvoir le respect universel et effectif.

(…)

X. Exécution de bonne foi des obligations assumées conformément au droit inter- national Dans l’exercice de leurs droits souverains, dont le droit de déterminer leurs lois et règle- ments, ils se conforment à leurs obligations juridiques en droit interna­tional ; en outre, ils tiennent dûment compte des dispositions de l’Acte final de la Conférence sur la sécu- rité et la coopération en Europe et les appliquent.

(…)

Tous les principes énoncés ci-dessus sont dotés d’une importance primordiale et en conséquence ils s’appliquent également et sans réserve, chacun d’entre eux s’interpré- tant en tenant compte des autres.

Les Etats participants expriment leur détermination de respecter et d’appli­quer plei- nement ces principes, tels qu’ils sont énoncés dans la présente Déclaration, sous tous leurs aspects, dans leurs rapports mutuels et dans leur coopération, afin d’assurer à cha-

Les engagements de la dimension humaine de l’OSCE  Mise en œuvre des engagement de la dimension humaine Pa rt i e I

que Etat participant les avantages résultant du respect et de l’appli­cation de ces princi- pes par tous.

Madrid 1983 (Questions relatives à la sécurité en Europe : Préambule) Les Etats participants déclarent qu’ils sont résolus à

(…)

• agir constamment en conformité avec les dispositions qu’énonce l’Acte final et, en particulier, respecter strictement et sans réserves, et mettre en pratique tous les dix principes que contient la Déclaration sur les principes régissant les relations mutuel- les des Etats participants, indépendamment de leur système politique, économique ou social, ainsi que de leur dimension, de leur situation géographique ou de leur niveau de développement économique (…).

Madrid 1983 (Questions relatives à la sécurité en Europe : Principes) Les Etats participants soulignent leur détermination à favoriser et à encourager l’exer- cice effectif des droits de l’homme et des libertés fondamentales qui découlent tous de la dignité inhérente à la personne humaine et qui sont essentiels à son épanouissement libre et intégral, et à assurer des progrès constants et concrets conformément à l’Acte final, visant à la poursuite d’un développement constant dans ce domaine, dans tous les Etats participants, indépendamment de leur système politique, économique et social.

Paris 1990 (Une nouvelle ère de démocratie, de paix et d’unité) Nous déclarons que notre respect des droits de l’homme et des libertés fondamentales est irrévocable. Nous appliquerons pleinement et développerons les dispositions de la CSCE relatives à la dimension humaine.

Moscou 1991 (Préambule) Les Etats participants (…) se déclarent résolus à remplir tous leurs engagements rela- tifs à la dimension humaine et à résoudre par des moyens pacifiques toute question connexe, individuellement et collectivement, sur la base du respect mutuel et de la coo- pération.

Helsinki 1992 (Déclaration du sommet) 6. (…) L’acceptation de ces engagements constitue le fondement de la participation à la CSCE et de la coopération dans ce cadre ; elle conditionne le progrès de nos sociétés.

Istanbul 1999 (Charte de sécurité européenne : II. Nos fondements communs) 7. Nous réaffirmons notre attachement plein et entier à la Charte des Nations Unies, à l’Acte final de Helsinki, à la Charte de Paris et à tous les autres documents de l’OSCE auxquels nous avons souscrit. Ces documents représentent nos engagements communs et sont le fondement de notre travail. (…) Tous les engagements pris au titre de l’OSCE, sans exception, s’appliquent de façon égale à chaque Etat participant. Leur mise en

10 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Méthodes de mise en œuvre

œuvre de bonne foi est essentielle pour les relations entre les Etats, entre les gouverne- ments et leurs peuples ainsi qu’entre les organisations dont ces Etats sont membres. Les Etats participants doivent rendre compte à leurs citoyens et sont responsables les uns envers les autres de l’exécution des engagements qu’ils ont pris au titre de l’OSCE. Nous considérons ces engagements comme notre acquis commun et estimons donc qu’ils sont d’un intérêt immédiat et légitime pour tous les Etats participants.

2.2 Méthodes de mise en œuvre

2.2.1 Provisions générales (y compris l’enseignement des droits de l’homme) Helsinki 1975 (Suites de la Conférence) Les Etats participants,

(…)

1. Déclarent leur résolution, dans la période suivant la Conférence, de tenir dûment compte des dispositions de l’Acte final de la Conférence et de les appliquer :

a) unilatéralement, dans tous les cas qui se prêtent à une telle action ;

b) bilatéralement, par voie de négociations avec d’autres Etats participants ;

c) multilatéralement, par des réunions d’experts des Etats participants, ainsi que dans le cadre des organisations internationales existantes, telles que la Commission économi- que pour l’Europe des Nations Unies et l’UNESCO, en ce qui concerne la coopération dans les domaines de l’éducation, de la science et de la culture ;

2. Déclarent en outre leur résolution de poursuivre le processus multilatéral amorcé par la Conférence :

a) en procédant à un échange de vues approfondi portant à la fois sur la mise en œuvre des dispositions de l’Acte final et l’exécution des tâches définies par la Conférence (…) ;

(…)

Le texte du présent Acte Final sera publié dans chaque Etat participant, qui le diffusera et le fera connaître le plus largement possible.

Madrid 1983 (Questions relatives à la sécurité en Europe : Principes) Ils réaffirment leur détermination de respecter et d’appliquer pleinement ces principes et, par conséquent, de leur conférer par tous les moyens, tant juridiques que pratiques, une plus grande efficacité. Ils estiment que l’un de ces moyens pourrait consister à don- ner une expression législative – dans des formes répondant aux usages et procédures propres à chaque pays – aux dix principes énoncés dans l’Acte final.

(…)

Les engagements de la dimension humaine de l’OSCE 11 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

Ils confirment l’importance particulière que revêtent la Déclaration universelle des droits de l’homme, les pactes internationaux relatifs aux droits de l’homme et les autres instruments internationaux pertinents reflétant les efforts qu’ils font, séparément et conjointement, pour stimuler et développer le respect universel des droits de l’homme et des libertés fondamentales : ils appellent tous les Etats participants à agir conformé- ment à ces instruments internationaux et ceux d’entre eux qui ne l’ont pas encore fait à envisager d’adhérer à ces pactes.

Copenhague 1990 (5) Ils déclarent solennellement que, parmi les principes de la justice essentiels à l’ex- pression complète de la dignité inhérente à la personne humaine et des droits égaux et inaliénables de tous les êtres humains, il faut mentionner les suivants :

(…)

(5.21) – afin de compléter les recours internes et de mieux garantir le respect par les Etats participants des obligations internationales souscrites par eux, les Etats partici- pants envisageront d’adhérer à une convention internationale de caractère régional ou universel relative à la protection des droits de l’homme, tels la Convention européenne des droits de l’homme ou le Protocole facultatif se rapportant au Pacte international relatif aux droits civils et politiques, qui prévoient des procédures de recours individuels devant des instances internationales.

Moscou 1991 (42) Les Etats participants

(42.1) – affirment que l’enseignement des droits de l’homme est fondamental et qu’il est par conséquent indispensable que leurs citoyens reçoivent un enseignement au sujet des droits de l’homme et des libertés fondamentales ainsi que de l’engagement pris par les Etats participants dans leur législation interne et dans les instruments internationaux auxquels ils peuvent être parties de respecter ces droits et libertés ;

(42.2) – reconnaissent qu’un enseignement efficace des droits de l’homme contribue à la lutte contre l’intolérance, les préjugés et la haine fondés sur la religion, la race ou l’eth- nie, y compris envers les Roms, la xénophobie et l’antisémitisme ;

(42.3) – encourageront leurs autorités compétentes responsables des programmes d’en- seignement à élaborer des programmes et des cours relatifs aux droits de l’homme à l’intention des étudiants à tous les niveaux, particulièrement aux étudiants en droit, en sciences administratives et en sciences sociales, ainsi qu’aux élèves des écoles d’admi- nistration, des écoles de police et des écoles militaires ;

(42.4) – mettront à la disposition de leur personnel enseignant toutes les informations sur les dispositions relatives à la dimension humaine de la CSCE ;

12 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Méthodes de mise en œuvre

(42.5) – encourageront les organisations et les établissements d’enseignement à coopé- rer à l’élaboration et à l’échange, tant au niveau national qu’international, de program- mes consacrés aux droits de l’homme ;

(42.6) – s’efforceront de veiller à ce que les activités entreprises en vue de promouvoir l’éducation en matière de droits de l’homme, considérée au sens le plus large, s’appuient sur l’expérience, les programmes et les modalités de coopération dans les organisations internationales intergouvernementales et non gouvernementales existantes, notam- ment l’Organisation des Nations Unies et le Conseil de l’Europe.

2.2.2 Résumé de la mise en œuvre Helsinki 1992 (Décisions : I. Renforcement des institutions et des structures de la CSCE) (26) L’examen approfondi de la mise en œuvre des engagements de la CSCE continuera à jouer un rôle fondamental dans les activités de la CSCE, favorisant ainsi la coopération entre les Etats participants.

(27) Des examens de la mise en œuvre se tiendront régulièrement lors des conférences d’examen aussi bien que des réunions spéciales convoquées à cette fin au BIDDH et au CPC, et lorsque le CHF se réunira en qualité de Forum économique comme le prévoient les documents pertinents de la CSCE.

(28) Ces examens, entrepris dans un esprit de coopération, porteront sur tous les aspects de la mise en œuvre, tout en permettant de traiter des questions précises.

(29) Les Etats participants seront invités à présenter des contributions sur leur expé- rience de la mise en œuvre, en mentionnant particulièrement les difficultés rencontrées, et à exposer leurs vues sur la mise en œuvre dans toute la zone de la CSCE. Les Etats participants sont encouragés à diffuser des résumés de leurs contributions avant la réu- nion.

(30) Ces examens devraient fournir l’occasion de déterminer les décisions qui pour- raient être nécessaires pour traiter des problèmes. Les réunions au cours desquelles a lieu un examen de la mise en œuvre pourront attirer l’attention du CHF sur toute mesure jugée souhaitable pour améliorer la mise en œuvre.

Budapest 1994 (Déclaration du sommet) 14. (…) L’examen périodique de la mise en œuvre de nos engagements, qui revêt une importance fondamentale dans toute la CSCE. (…)

Budapest 1994 (Décisions : VIII. La dimension humaine) 5. Utilisant les structures d’examen de la mise en œuvre contenues dans le Document de Helsinki 1992 et soucieux d’améliorer la mise en œuvre des engagements au titre de la dimension humaine, les Etats participants utiliseront le Conseil permanent pour approfondir le dialogue sur la dimension humaine et réagir dans les cas de violation

Les engagements de la dimension humaine de l’OSCE 13 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

de ces engagements. A cet effet, les Etats participants décident que les questions de la dimension humaine seront traitées régulièrement par le Conseil permanent (…).

6. Les Etats participants encouragent le Président en exercice à informer le Conseil permanent de cas graves de non‑application présumée des engagements au titre de la dimension humaine, notamment sur la base des informations fournies par le BIDDH, des rapports et des recommandations du Haut Commissaire pour les minorités natio- nales (HCMN) ou des rapports du chef de telle ou telle mission de la CSCE, ainsi que des informations communiquées par l’Etat concerné.

Istanbul 1999 (Charte de sécurité européenne : III. Notre réponse commune) 14. (…) Nous confirmons, chacun d’entre nous, que nous sommes prêts à honorer plei- nement nos engagements. Nous avons également pour responsabilité commune de faire respecter les principes de l’OSCE. (…) Nous coopérerons, dans un esprit de solidarité et de partenariat, à un examen continu de la mise en œuvre. (…)

2.2.3 Observation des élections Copenhague 1990 (8) Les Etats participants estiment que la présence d’observateurs, étrangers et natio- naux, est de nature à améliorer le déroulement des élections dans les Etats où elles ont lieu. En conséquence, ils invitent des observateurs de tout autre Etat participant à la CSCE, ainsi que de toute institution et organisation privée compétente qui le souhaite- rait, à suivre le déroulement des opérations de leurs élections nationales, dans la mesure prévue par la loi. Ils s’appliqueront également à faciliter un accès analogue pour les élec- tions organisées à un niveau inférieur au niveau national. Ces observateurs s’engageront à ne pas s’immiscer dans les opérations électorales.

(…)

(12) Les Etats participants, désireux d’assurer une meilleure transparence dans la mise en œuvre des engagements souscrits au titre de la dimension humaine de la CSCE dans le Document de clôture de Vienne, décident d’admettre, à titre de mesure de confiance, la présence d’observateurs envoyés par des Etats participants et de représentants d’or- ganisations non gouvernementales ainsi que d’autres personnes intéressées lors de pro- cédures engagées devant des tribunaux, comme prévu par la législation nationale et le droit international ; il est entendu que le huis clos ne peut être prononcé que dans les circonstances prévues par la loi et conformément aux obligations découlant du droit international et aux engagements internationaux.

2.2.4 Mécanismes de la dimension humaine de l’OSCE et autres mécanismes pertinants Istanbul 1999 (Charte de sécurité européenne : III. Notre réponse commune) 14. (…) Nous confirmons, chacun d’entre nous, que nous sommes prêts à honorer plei- nement nos engagements. Nous avons également pour responsabilité commune de faire respecter les principes de l’OSCE. Nous (…) sommes prêts à recourir aux instruments,

14 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Méthodes de mise en œuvre

outils et mécanismes de l’OSCE. Nous coopérerons, dans un esprit de solidarité et de partenariat, à un examen continu de la mise en œuvre.

A. Mécanisme de Vienne Vienne 1989 (Dimension humaine de la CSCE) Les Etats participants,

Rappelant les engagements qu’ils ont contractés dans l’Acte final et dans d’autres docu- ments de la CSCE en ce qui concerne le respect de tous les droits de l’homme et de toutes les libertés fondamentales, les contacts entre les personnes et d’autres questions d’ordre humanitaire connexes,

Reconnaissant la nécessité d’améliorer la mise en œuvre de leurs engagements au titre de la CSCE et leur coopération dans ces domaines, désignés ci‑après par l’expression « dimension humaine » de la CSCE,

Ont décidé, sur la base des principes et des dispositions de l’Acte final et des autres documents pertinents de la CSCE,

1. d’échanger des informations et de répondre aux demandes d’informations et aux représenta­tions qui leur sont faites par d’autres Etats participants sur des questions relatives à la dimen­sion humaine de la CSCE. Ces communications peuvent être trans- mises par la voie diploma­tique ou être adressées à tout service désigné à ces fins ;

2. de tenir des réunions bilatérales avec d’autres Etats participants qui le demandent, afin d’examiner des questions relatives à la dimension humaine de la CSCE, y compris des situations et des cas spécifiques, en vue de les résoudre. La date et le lieu de ces réu- nions seront fixés d’un commun accord par la voie diplomatique ;

3. que tout Etat participant qui le juge nécessaire peut porter des situations et des cas relevant de la dimension humaine de la CSCE, y compris ceux qui ont été soulevés aux réunions bilatérales visées au paragraphe 2, à 1’attention d’autres Etats participants par la voie diplomatique ;

4. que tout Etat participant qui le juge nécessaire peut communiquer des données sur les échanges d’informations et sur les réponses à ses demandes d’informations et aux représentations qu’il a faites (paragraphe 1), ainsi que sur les résultats des réunions bilatérales (paragraphe 2), y compris des données sur des situations et des cas spécifi- ques, lors des réunions de suivi organisées dans le cadre de la CSCE et consacrées à la dimension humaine, et lors des réunions principales tenues dans le cadre des Suites de la CSCE.

(…)

Les engagements de la dimension humaine de l’OSCE 15 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

Copenhague 1990 (42) Les Etats participants reconnaissent la nécessité d’améliorer davantage l’efficacité des procédures décrites aux paragraphes 1 à 4 du chapitre relatif à la dimension humaine de la CSCE du Document de clôture de Vienne et, dans cette perspective, décident

(42.1) – de répondre par écrit, le plus rapidement possible et au plus tard dans un délai de quatre semaines, aux demandes d’informations et aux représentations qui leur sont faites par écrit par d’autres Etats participants en vertu du paragraphe 1 ;

(42.2) – que les réunions bilatérales, telles que mentionnées au paragraphe 2, auront lieu dès que possible, en règle générale dans les trois semaines qui suivront la demande;

(42.3) – de s’abstenir, lors d’une réunion bilatérale tenue conformément au paragraphe 2, d’évoquer des situations et des cas qui ne sont pas en rapport avec le sujet de la réu- nion, à moins que les deux parties n’aient donné leur accord.

(…)

B. Mécanisme de Moscou Moscou 1991 (Préambule & Section I – comme modifié par Rome 1993) Afin de renforcer et d’élargir le mécanisme de la dimension humaine décrit dans la sec- tion du Document de clôture de Vienne consacrée à la dimension humaine et de com- pléter et d’approfondir les engagements inscrits dans le Document de la Réunion de Copenhague, les Etats participants adoptent les dispositions suivantes :

(1) Les Etats participants soulignent que le mécanisme de la dimension humaine exposé aux paragraphes 1 à 4 de la section du Document de clôture de Vienne consacrée à la dimension humaine de la CSCE constitue une réalisation essentielle du processus de la CSCE, qui a fait ses preuves comme méthode permettant de renforcer le respect des droits de l’homme, des libertés fondamentales, de la démocratie et de l’Etat de droit par le dialogue et la coopération et d’aider à résoudre des questions particulières dans ce domaine. Afin d’améliorer encore l’application des engagements de la CSCE relatifs à la dimension humaine, ils décident de renforcer l’efficacité de ce mécanisme en le consoli- dant et en le développant de la façon indiquée aux paragraphes suivants.

(2) Les Etats participants décident de modifier les alinéas 42.1 e 42.2 du Document de la Réunion de Copenhague de telle sorte qu’ils adresseront dans le plus court délai possi- ble, au maximum dans les dix jours, une réponse écrite aux demandes d’information et aux représentations qui leur auront été adressées par écrit par d’autres Etats participants en application du paragraphe 1 de la section consacrée au mécanisme de la dimension humaine. Comme le prévoit le paragraphe 2 de cette section, des réunions bilatérales se tiendront dès que possible et, en règle générale, dans un délai d’une semaine à compter de la date de la demande.

16 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Méthodes de mise en œuvre

(3) Une liste sur laquelle chaque Etat participant fait inscrire jusqu’à trois experts sera constituée sans délai auprès de l’Institution de la CSCE. Ces experts seront des per- sonnalités éminentes, y compris si possible des spécialistes expérimentés des questions relatives aux minorités nationales, ayant de préférence une expérience dans le doma- ine de la dimension humaine, et présentant toutes les garanties d’impartialité dans l’exercice de leurs fonctions.

Les experts seront nommés, à la discrétion de l’Etat qui les désigne, pour une période de trois à six ans, aucun d’eux ne pouvant exercer consécutivement plus de deux man- dats. Dans les quatre semaines suivant la notification par l’Institution de la CSCE de la désignation, tout Etat participant ne peut émettre des réserves qu’à l’encontre de deux experts au maximum par Etat participant. Dans ce cas, l’Etat ayant désigné ce ou ces experts dispose de quatre semaines à partir de la date à laquelle de telles réserves lui auront été notifiées pour réexaminer sa décision et désigner un ou d’autres experts ; s’il confirme son choix initial, le ou les experts visés ne peuvent participer à aucune procé- dure concernant l’Etat ayant émis une réserve sans que ce dernier n’y consente expres- sément.

La liste pourra être utilisée dès qu’elle comptera 45 experts.

(4) Un Etat participant peut demander l’assistance d’une mission de la CSCE consti- tuée d’un nombre d’experts pouvant aller jusqu’à trois pour examiner ou contribuer à résoudre sur son territoire des questions relatives à la dimension humaine de la CSCE. Dans ce cas, l’Etat choisira cette personne ou ces personnes à partir de la liste. La mis- sion d’experts ne comptera pas de ressortissant ou de résident de l’Etat participant, ni aucune personne que cet Etat aura fait inscrire sur la liste, ni plus d’un ressortissant ou résident d’un Etat donné.

L’Etat invitant fera savoir sans délai à l’Institution de la CSCE qu’une mission d’experts a été constituée et l’Institution de la CSCE en adressera à son tour notification à tous les Etats participants. Les institutions de la CSCE apporteront également, si besoin est, à une telle mission le soutien approprié.

(5) Le but d’une mission d’experts est d’aider à résoudre une question ou un problème particulier relevant de la dimension humaine de la CSCE. Une telle mission pourra recueillir l’information nécessaire à l’accomplissement de sa tache et, s’il y a lieu, exer- cer ses bons offices et sa médiation dans le but de favoriser le dialogue et la coopération entre les parties. L’Etat concerné conviendra avec la mission du mandat exact de celle- ci et pourra, ce faisant, lui confier d’autres tâches, consistant notamment à mener des enquêtes ou fournir des services consultatifs, de manière à proposer des moyens per- mettant de faciliter le respect des engagements souscrits dans le cadre de la CSCE.

(6) L’Etat invitant coopérera pleinement avec la mission d’experts et lui facilitera la tâche. Il lui accordera tous les moyens nécessaires pour qu’elle puisse exercer ses fonc- tions de manière indépendante. Il lui permettra notamment, pour pouvoir accomplir

 Le Conseil décidera quelle sera cette institution.

Les engagements de la dimension humaine de l’OSCE 17 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

sa tâche, d’entrer sur son territoire sans délai, d’y avoir des entretiens et de s’y dépla- cer librement, de rencontrer librement des représentants officiels, des organisations non gouvernementales, ainsi que tout individu ou groupe desquels elle souhaitera obtenir des informations. La mission pourra également obtenir de manière confidentielle de la part de tout individu, groupe ou organisation des informations sur des questions dont elle est saisie. Ses membres veilleront au respect de la confidentialité de leurs travaux.

Les Etats participants ne prendront aucune mesure à l’encontre de personnes, d’orga- nisations ou d’institutions pour avoir eu des contacts avec la mission d’experts ou lui avoir communiqué des informations relevant du domaine public. L’Etat invitant fera droit à toute demande présentée par une mission d’experts en vue d’être accompagnée par des représentants officiels de cet Etat si cette mission estime qu’ainsi sa tâche serait facilitée ou sa sécurité garantie.

(7) La mission d’experts communiquera ses observations à l’Etat invitant dans les meilleurs délais, si possible dans les trois semaines qui suivent sa constitution. L’Etat invitant communiquera aux autres Etats participants, par le canal de l’Institution de la CSCE, dans les deux semaines suivant la date à laquelle elles lui auront été soumises, les observations de la mission ainsi que l’exposé de toute mesure qu’elle aura prise ou entendra prendre en conséquence.

Ces observations et les commentaires formulés éventuellement par l’Etat invitant pour- ront être discutés par le Comité des hauts fonctionnaires, qui pourra étudier toute suite éventuelle à donner. Ces observations et ces commentaires resteront confidentiels tant qu’ils n’auront pas été portés à l’attention de ce Comité. Tant que ces observations et commentaires n’auront pas été diffusés, aucune autre mission d’experts ne pourra être constituée à propos de la même question.

(8) En outre, un ou plusieurs Etats participants ayant appliqué les dispositions du para- graphe 1 ou du paragraphe 2 du mécanisme de la dimension humaine peuvent prier l’Institution de la CSCE de demander à un autre Etat participant si ce dernier accep- terait d’inviter une mission d’experts chargée d’étudier sur son territoire une question particulière, expressément définie, ayant trait à la dimension humaine de la CSCE. Si l’autre Etat participant accepte d’inviter une mission d’experts à cette fin, la procédure définie aux paragraphes 4 à 7 est alors applicable.

(9) Si un Etat participant a) a adressé une requête aux termes du paragraphe 8 à un autre Etat participant et que cet Etat n’a pas constitué une mission d’experts dans un délai de dix jours après que la demande lui a été faite, ou b) estime que la mission d’experts n’a pas permis de résoudre la question, il peut, avec le soutien d’au moins cinq autre Etats participants, demander la constitution d’une mission de rapporteurs de la CSCE, dont le nombre peut s’élever à trois. Cette décision est alors communiquée à l’Institution de la CSCE, qui la notifiera sans délai à l’Etat concerné ainsi qu’aux autres Etats partici- pants.

18 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Méthodes de mise en œuvre

(10) Le ou les Etats requérants peuvent choisir sur la liste un rapporteur de la CSCE. L’Etat requis peut, s’il le désire, désigner un autre rapporteur sur la liste dans les six jours suivant la notification par l’Institution de la CSCE de la désignation du rappor- teur. Dans ce cas, les deux rapporteurs désignés, qui ne peuvent être ressortissants ni résidents de l’un des Etats concernés, ni avoir été inscrits sur la liste par un de ces Etats, désignent d’un commun accord et sans retard un troisième rapporteur sur la liste. Dans le cas où ils ne parviennent pas à un accord dans un délai de huit jours, un troisième rapporteur, qui ne peut être ni ressortissant ni résident de l’un des Etats concernés, ni être une personne inscrite sur la liste par un de ces Etats, sera choisi sur la liste par le membre du rang le plus élevé de l’organe de la CSCE désigné par le Conseil. Les dispo- sitions de la deuxième partie du paragraphe 4 et de la totalité du paragraphe 6 s’appli- quent également à une mission de rapporteurs.

(11) Le ou les rapporteurs de la CSCE établiront les faits, feront rapport à ce sujet et pourront formuler un avis sur les solutions possibles à la question soulevée. Le rap- port, qui contient une constatation des faits, des propositions ou des avis, sera soumis à l’Etat ou aux Etats participants concernés et, à moins que tous les Etats concernés n’en conviennent autrement, à l’Institution de la CSCE, dans les deux semaines qui suivent la désignation du dernier rapporteur. L’Etat requis soumettra à l’institution de la CSCE toutes observations concernant le rapport dans les deux semaines suivant la soumission de ce rapport à moins que tous les Etats concernés n’en conviennent autrement.

L’Institution de la CSCE transmettra sans délai le rapport ainsi que toutes observa- tions formulées par l’Etat requis ou par tout autre Etat participant à tous les Etats par- ticipants. Le rapport sera inscrit à l’ordre du jour de la réunion ordinaire suivante du Comité des hauts fonctionnaires ou du Comité permanent de la CSCE, lequel pourra décider de la suite éventuelle à donner. Le rapport restera confidentiel jusqu’au terme de cette réunion du Comité. Tant que ce rapport n’aura pas été distribué, aucun autre rap- porteur ne pourra être désigné à propos de la même question.

(12) Si un Etat participant estime qu’il existe, dans un autre Etat participant, un ris- que particulièrement grave que les dispositions de la CSCE concernant la dimension humaine ne soient pas respectées, il peut, avec l’appui d’au moins neuf autres Etats par- ticipants, engager la procédure énoncée au paragraphe 10. Les dispositions du paragra- phe 11 sont alors applicables.

(13) Le Comité des hauts fonctionnaires ou le Comité permanent de la CSCE peut, à la demande de tout Etat participant, décider de constituer une mission d’experts ou de rapporteurs de la CSCE. Dans ce cas, il décide également s’il y a lieu d’appliquer les dis- positions pertinentes des paragraphes précédents.

(14) Le ou les Etats participants qui auront demandé la constitution d’une mission d’ex- perts ou de rapporteurs subviendront aux frais de cette mission. Dans le cas où les experts ou les rapporteurs auront été désignés en application d’une décision du Comité des hauts fonctionnaires ou du Comité permanent de la CSCE, les dépenses seront assu- mées par les Etats participants conformément au barème habituel de répartition de ces

Les engagements de la dimension humaine de l’OSCE 19 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

dépenses. Ces dispositions seront réexaminées lors de la Réunion principale de suivi de la CSCE qui se tiendra à Helsinki.

(15) Rien de ce qui précède ne porte atteinte, de quelque manière que ce soit, au droit des Etats participants de soulever, dans le cadre du processus de la CSCE, une question relative au respect d’un engagement souscrit dans ce cadre, notamment d’un engage- ment ayant trait à la dimension humaine de la CSCE.

16) En examinant s’il y a lieu d’appliquer les procédures énoncées aux paragraphes 9 et 10 ou au paragraphe 12 en ce qui concerne le cas d’une personne, les Etats participants devraient s’assurer que le cas de cette personne ne fait pas déjà l’objet d’une procédure judiciaire internationale.

Prague 1992 (Document de Prague sur le développement ultérieur des institutions et structures de la CSCE : III. La dimension humaine) 14. Le Bureau des institutions démocratiques et des droits de l’homme est désigné pour être l’institution de la CSCE chargée des tâches liées aux missions d’experts et de rap- porteurs conformément au Document de la Réunion de Moscou de la Conférence sur la dimension humaine de la CSCE.

Helsinki 1992 (Décisions : VI. La dimension humaine) (5) Sous la direction générale du CHF (…) le BIDDH, en tant que principale institution de la dimension humaine :

(5a) aidera à contrôler la mise en œuvre des engagements pris au titre de la dimension humaine :

• en servant de lieu de rencontre pour les réunions bilatérales en application du paragra- phe 2 et de canal d’information en vertu du paragraphe 3 du mécanisme de la dimen- sion humaine, tel qu’il est décrit dans le Document de clôture de Vienne ;

(…)

(5b) servira de centre d’échange des informations concernant :

• l’état d’exception, conformément au paragraphe 28.10 du Document de la Réunion de Moscou de la Conférence sur la dimension humaine ;

(…)

(7) Afin d’aligner le mécanisme de la dimension humaine sur les structures et les insti- tutions actuelles de la CSCE, les Etats participants décident ce qui suit :

Tout Etat participant qui le juge nécessaire peut communiquer aux autres Etats partici- pants, par l’intermédiaire du BIDDH – qui peut également servir de lieu de rencontre pour les réunions bilatérales organisées au titre du paragraphe 2 – ou par la voie diplo- matique, des informations sur des situations et des cas qui ont fait l’objet de deman-

20 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Méthodes de mise en œuvre

des au titre des paragraphes 1 ou 2 du chapitre « Dimension humaine de la CSCE » du Document de clôture de Vienne. Ces informations peuvent être discutées aux réunions du CHF, aux réunions sur la mise en oeuvre des engagements concernant la dimension humaine et aux conférences d’examen.

(8) Les méthodes de répartition des dépenses afférentes aux missions d’experts et aux missions de rapporteurs du mécanisme de la dimension humaine pourront être exami- nées par la prochaine conférence d’examen, à la lumière de l’expérience acquise.

Mise en oeuvre Réunions sur la mise en oeuvre des engagements concernant la dimension humaine

(9) Chaque année au cours de laquelle il n’y a pas de conférence d’examen, le BIDDH organisera, à son siège, une réunion d’experts de tous les Etats participants pendant trois semaines pour faire le bilan de la mise en oeuvre des engagements pris par la CSCE au titre de la dimension humaine. La réunion remplira les tâches suivantes :

(9a) échange de vues approfondi sur la mise en oeuvre des engagements concernant la dimension humaine, y compris un débat sur les informations fournies conformément au point 4 du mécanisme de la dimension humaine (…)

Budapest 1994 (Décisions : VIII. La dimension humaine) 5. Utilisant les structures d’examen de la mise en oeuvre contenues dans le Document de Helsinki 1992 et soucieux d’améliorer la mise en oeuvre des engagements au titre de la dimension humaine, les Etats participants utiliseront le Conseil permanent pour approfondir le dialogue sur la dimension humaine et réagir dans les cas de violation de ces engagements. A cet effet, les Etats participants décident que les questions de la dimension humaine seront traitées régulièrement par le Conseil permanent comme partie intégrante de ses travaux. Ils utiliseront plus largement les possibilités offertes par le Mécanisme de Moscou pour examiner des questions relatives à la dimension humaine ou en faciliter la résolution sur leur territoire.

6. Les Etats participants encouragent le Président en exercice à informer le Conseil permanent de cas graves de non‑application présumée des engagements au titre de la dimension humaine, notamment sur la base des informations fournies par le BIDDH, des rapports et des recommandations du Haut Commissaire pour les minorités natio- nales (HCMN) ou des rapports du chef de telle ou telle mission de la CSCE, ainsi que des informations communiquées par l’Etat concerné.

C. Mécanisme de l’OSCE visant à aider les États participants à lutter contre la traite des êtres humains Maastricht 2003 (Décisions : Décision No. 2/03 sur la lutte contre la traite des êtres humains) Le Conseil ministériel,

(…)

Les engagements de la dimension humaine de l’OSCE 21 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

Dans le but d’intensifier les efforts de l’OSCE dans la lutte contre la traite des êtres humains,

(…)

2. Etablit, sous l’égide du Conseil permanent, un mécanisme de l’OSCE visant à por- ter assistance aux Etats participants pour lutter contre la traite des êtres humains. Ce mécanisme consistera en deux éléments dont les activités se complètent : d’une part, un représentant spécial nommé par la Présidence en exercice et, d’autre part, une unité spéciale au sein du Secrétariat de l’OSCE.

Le mécanisme est établi pour :

a) Aider les Etats participants à mettre en œuvre les engagements proposés dans le Plan d’action de l’OSCE pour lutter contre la traite des êtres humains et à utiliser pleinement les recommandations ;

b) Assurer la coordination des efforts déployés par l’OSCE pour lutter contre la traite des êtres humains dans les trois dimensions de l’Organisation ;

c) Renforcer la coordination entre les autorités responsables des Etats participants, ainsi qu’entre l’OSCE et d’autres organisations compétentes ;

d) Sensibiliser davantage le public et les milieux politiques à la lutte contre la traite des êtres humains ;

e) Opérer dans l’espace de l’OSCE tout entier et, le cas échéant, aider les Etats partici- pants, dans un esprit de coopération et à la suite de consultations avec les autorités res- pectives des Etats participants concernés, à mettre en œuvre leurs engagements dans la lutte contre la traite des êtres humains ;

f) Fournir et faciliter des conseils et une assistance technique dans le domaine législa- tif ainsi que de l’élaboration de politiques, le cas échéant, en coopération avec d’autres structures de l’OSCE actives dans ce domaine ;

g) Etre prêt à offrir des conseils aux autorités de haut niveau représentant les pouvoirs législatif, judiciaire et exécutif dans les Etats participants, et à examiner avec ces der- nières la mise en œuvre du Plan d’action de l’OSCE pour lutter contre la traite des êtres humains et des engagements en la matière ; dans certains cas exigeant une attention particulière, rechercher des contacts directs, de manière appropriée, avec l’Etat partici- pant concerné et examiner, en cas de besoin, la possibilité de lui fournir des conseils et une assistance concrète ;

h) Coopérer avec les Rapporteurs nationaux ou d’autres mécanismes nationaux établis par les Etats participants pour assurer la coordination et le suivi des activités menées par les institutions d’Etat pour lutter contre la traite des êtres humains ; coopérer égale- ment avec les organisations non gouvernementales compétentes des Etats participants ; organiser et faciliter en outre, au sein de l’OSCE, des réunions en vue d’un échange

22 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Méthodes de mise en œuvre

d’informations et de données d’expérience entre coordonnateurs nationaux, représen- tants désignés par les Etats participants ou experts en matière de lutte contre la traite des êtres humains ;

i) Coopérer étroitement avec le Bureau des institutions démocratiques et des droits de l’homme (BIDDH) et d’autres institutions de l’OSCE, avec le Secrétaire général, les structures pertinentes du Secrétariat, notamment le Bureau du Coordonnateur des acti- vités économiques et environnementales de l’OSCE, l’Unité pour les questions stratégi- ques de police, le Conseiller principal pour les questions de parité des sexes ainsi que, le cas échéant, avec les opérations de terrain de l’OSCE ; mettre à profit les connaissances spécialisées de ces structures de l’OSCE et veiller à éviter tout double emploi ; partici- per, le cas échéant, aux activités du Groupe de travail informel sur la parité des sexes et sur la lutte contre la traite des êtres humains ;

j) Coopérer et se concerter avec les acteurs internationaux compétents, comme l’Office des Nations Unies contre la drogue et le crime, le Haut Commissariat des Nations Unies pour les réfugiés, le Haut Commissariat des Nations Unies aux droits de l’homme, le Fonds des Nations Unies pour l’enfance, l’Organisation internationale du Travail, ainsi qu’avec l’Organisation internationale pour les migrations, le Centre international pour le développement des politiques migratoires, l’Union européenne, le Conseil de l’Eu- rope, l’Equipe spéciale du Pacte de stabilité sur la traite des êtres humains, le Conseil des Etats de la mer Baltique, l’Initiative de coopération en Europe du Sud‑Est, Interpol et Europol ;

3. Affirme que le Représentant spécial sera politiquement responsable devant le Conseil permanent et qu’il lui fera rapport régulièrement et en cas de besoin. Il s’acquittera de ses fonctions conformément à la Décision No 8 de la dixième Réunion du Conseil ministériel tenue à Porto ;

4. Demande à la Présidence en exercice de nommer en qualité de Représentant spécial une personnalité éminente disposant de l’expérience appropriée, conformément aux procédures de l’OSCE, à l’issue de consultations menées avec les Etats participants, par l’intermédiaire du Comité préparatoire, au sujet de son mandat. (…) ;

5. Charge le Conseil permanent d’établir l’Unité spéciale susmentionnée dans le cadre du Secrétariat de l’OSCE, en faisant appel à du personnel sous‑contrat ou détaché. Le Représentant spécial aura à son entière disposition l’ensemble des capacités de l’Unité spéciale afin de s’acquitter efficacement des tâches susmentionnées ;

(…)

D. Reseau contre-terrorisme de l’OSCE Maastricht 2003 (Décisions : Décision No. 6/03 sur le mandat du réseau contre-terro- risme de l’OSCE) Le Conseil ministériel,

Les engagements de la dimension humaine de l’OSCE 23 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

(…)

Décide d’établir le Réseau contre-terrorisme de l’OSCE, conformément au mandat qui figure dans l’annexe à la présente décision.

Annexe à la Décision No 6/03 : Le mandat du réseau contre-terrorisme de l’OSCE Le Réseau contre‑terrorisme de l’OSCE a pour principal objectif de promouvoir le ren- forcement de la coordination des mesures antiterroristes et l’échange d’informations entre les Etats participants de l’OSCE. Il vise en particulier à renforcer la liaison entre les délégations des Etats participants, les responsables de la lutte antiterroriste dans les capitales, ainsi que l’Unité d’action de l’OSCE contre le terrorisme. Le Réseau facilite les échanges réguliers d’informations sur les programmes, la formation et l’évolution du droit, organisés sur l’initiative de l’OSCE et des Etats participants dans le domaine de la lutte contre le terrorisme, ainsi que les analyses provenant de sources librement accessibles concernant les tendances observées dans les phénomènes du terrorisme. L’accent sera mis principalement sur l’appui et la complémentarité avec les travaux du Comité contre le terrorisme du Conseil de sécurité des Nations Unies dans l’application de la résolution 1373 du Conseil de sécurité. Le Réseau contre‑terrorisme de l’OSCE ne vise pas à servir d’intermédiaire pour l’échange de renseignements ou de toutes autres informations sensibles, ni à faire double emploi avec d’autres réseaux internationaux et régionaux de répression.

Chaque gouvernement désignera un agent de liaison principal qui servira, par l’inter- médiaire de sa délégation auprès de l’OSCE, de point de contact principal avec l’Unité d’action contre le terrorisme. L’agent de liaison principal veillera à ce que les commu- nications émanant de l’Unité soient transmises aux autorités gouvernementales appro- priées de la capitale concernée, et que l’Unité et les délégations soient également infor- mées en temps utile des faits nouveaux pertinents survenus dans l’Etat participant. Afin de favoriser la coordination, les communications passant par le Réseau contre‑terro- risme entre l’Unité et l’agent de liaison principal seront en principe transmises par le biais de la délégation de l’Etat concerné auprès de l’OSCE.

Attributions de l’Unité d’action contre le terrorisme 1. Informer les Etats participants des possibilités de formation tant bilatérales que mul- tilatérales sur les questions de lutte contre le terrorisme et coopérer avec les agents de liaison principaux pour tirer pleinement parti de tels programmes.

2. Coordonner et favoriser les activités de lutte antiterroriste de l’OSCE, notamment les programmes d’assistance en matière de renforcement des capacités, les ateliers de for- mation et de préparation aux situations d’urgence, afin d’utiliser de manière efficace les ressources et d’éviter tout double emploi.

 Le Comité contre le terrorisme (CTC) des Nations Unies a appuyé l’élaboration de tels réseaux régionaux en vue de renforcer la coopération et la coordination. Le Secrétariat du Comité interaméricain contre le terrorisme (CICTE), au sein de l’Organisation des Etats américains, a déjà élaboré, au sein de l’hémisphère occidental, un réseau régional de points de contact nationaux. L’Unité d’action contre le terrorisme est reconnaissante au CICTE pour les avis et l’assistance qu’elle a fournis pour l’élaboration du Réseau contre terrorisme de l’OSCE.

24 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Méthodes de mise en œuvre

3. Répondre en temps opportun aux informations et aux demandes d’action émanant des agents de liaison principaux.

4. Veiller à ce que, par le biais des délégations, les agents de liaison principaux soient pleinement informés des faits nouveaux concernant des questions importantes en matière de lutte antiterroriste qui affectent la région de l’OSCE, en distribuant régu- lièrement, au moyen du courrier électronique, une lettre d’information de l’Unité d’ac- tion contre le terrorisme et des mises à jour régulières de la page d’accueil de l’Unité de l’OSCE.

5. Assurer la coordination avec l’agent de liaison principal, par l’intermédiaire de la délé- gation concernée, lorsqu’un responsable de l’Unité d’action de l’OSCE contre le terro- risme se rend dans un Etat participant afin d’étudier les questions liées au terrorisme.

Attributions des agents de liaison principaux 1. Veiller à ce que les communications émanant de l’Unité d’action contre le terrorisme parviennent aux bureaux gouvernementaux appropriés, et que les réponses à l’Unité d’action contre le terrorisme soient envoyées en temps opportun.

2. Fournir des informations à l’Unité d’action contre le terrorisme sur les faits nouveaux importants survenus au plan national concernant les mesures prises pour lutter contre le terrorisme, notamment de nouvelles législations en la matière, la formation ou les programmes d’assistance dans ce domaine, ainsi que des exemples des « meilleures pra- tiques » nationales.

3. Communiquer des informations sur les séminaires, les ateliers et les conférences sur les préoccupations en matière de lutte antiterroriste que les Etats participants peuvent organiser et qui sont ouverts à une participation extérieure.

4. Faire fonction de coordonnateur principal pour les séminaires, les ateliers et les conférences de l’OSCE en matière de lutte contre le terrorisme auxquels assiste l’Etat participant de l’agent de liaison principal.

5. Assurer la coordination et la communication, au nom de l’Etat participant concerné, des besoins en matière de formation et d’assistance, ainsi que des demandes ayant trait aux questions de lutte contre le terrorisme que l’OSCE est en mesure d’appuyer ou de favoriser (…).

 Pour obtenir les informations les plus exactes sur les ratifications, l’Unité d’action de l’OSCE contre le terrorisme se fonde sur les notifications officielles de ratifications soumises par le biais des sites web des dépositaires pertinents des instruments de lutte contre le terrorisme.

Les engagements de la dimension humaine de l’OSCE 25 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

E. Autres mécanismes Prague 1992 (Document de Prague sur le développement ultérieur des institutions et structures de la CSCE : IV. Sauvegarde des droits de l’homme, de la démocratie et de l’Etat de droit) 16. Le Conseil a décidé, afin d’accroître encore la capacité de la CSCE à garantir les droits de l’homme, la démocratie et l’Etat de droit par des moyens pacifiques, que des mesures appropriées pourront être prises par le Conseil ou le Comité des hauts fonc- tionnaires, si nécessaire sans le consentement de l’Etat concerné, en cas de violation flagrante, grave et persistante des engagements correspondants de la CSCE. De telles actions consisteraient en déclarations politiques ou en d’autres mesures de nature poli- tique qui seraient appliquées hors du territoire de l’Etat concerné. Cette décision ne déroge en rien aux mécanismes existants de la CSCE.

Helsinki 1992 (Décisions : I. Renforcement des institutions et des structures de la CSCE) (22) Lorsqu’il traite d’une crise ou d’un conflit, le Président en exercice pourra, sous sa propre responsabilité, désigner pour l’assister un représentant personnel en lui don- nant un mandat clair et précis. Le Président en exercice informera le CHF de son inten- tion de nommer un représentant personnel et du mandat de celui‑ci. Dans ses rapports au Conseil/CHF, le Président en exercice inclura des informations sur les activités de son représentant personnel ainsi que tout avis ou toute observation que celui‑ci lui aura soumis.

Sofia 2004 (Décisions : Décision No. 12/04 sur la tolérance et la non-discrimination) Le Conseil ministériel,

(…)

5. Accueille avec satisfaction l’intention du Président en exercice de désigner, conformé- ment à la Décision No 8 du Conseil ministériel de Porto, trois représentants personnels dans le cadre de la lutte globale de l’OSCE contre la discrimination et pour la promo- tion de la tolérance. Les dépenses afférentes aux représentants personnels seront cou- vertes par les contributions extrabudgétaires.

2.3 Partenaires de la mise en œuvre

2.3.1 Gouvernements, corps et institutions Helsinki 1975 (Questions relatives à la sécurité en Europe : 1. (a) Déclaration sur les principes régissant les relations mutuelles des Etats participants – Principe IX) [Les Etats participants] (…) confirment que les gouvernements, les institutions, les orga- nisations et les personnes ont un rôle propre et positif à jouer en contribuant à atteindre ces objectifs de leur coopération.

26 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Partenaires de la mise en œuvre

Copenhague 1990 (Préambule) [Les Etats participants] reconnaissent que la coopération entre eux, ainsi que la par- ticipation active de personnes, groupes ou groupements, organisations et institutions seront essentielles pour assurer la poursuite des progrès permettant la réalisation de leurs objectifs communs.

Moscou 1991 (Préambule) Les Etats participants (…) se déclarent résolus à remplir tous leurs engagements rela- tifs à la dimension humaine et à résoudre par des moyens pacifiques toute question connexe, individuellement et collectivement, sur la base du respect mutuel et de la coo- pération. Dans ce contexte, ils reconnaissent que la participation active de personnes, de groupes, d’organisations ou d’institutions est essentielle à la poursuite des progrès dans cette voie.

2.3.2 Gouvernements d’autres pays et organisations internationales Helsinki 1992 (Déclaration du sommet) 7. Nous confirmons la validité des principes directeurs et des valeurs communes ins- crits dans l’Acte final de Helsinki et dans la Charte de Paris. Ils sont la base des respon- sabilités des Etats l’un envers l’autre et des gouvernements envers leur peuple. Ils sont la conscience collective de notre communauté. Nous reconnaissons notre responsabilité mutuelle de les respecter. Nous soulignons le droit démocratique des citoyens d’exiger de leur gouvernement le respect de ces valeurs et de ces normes.

Helsinki 1992 (Décisions : IV. Relations avec les organisations internationales, relations avec les états non participants, rôles des organisations non gouvernementales (ONG)) (1) (…) Les efforts pour établir un ordre durablement pacifique et démocratique et gérer le processus d’évolution ne peuvent aboutir sans des apports plus structurés et plus substantiels de la part de groupes, d’individus, d’Etats et d’organisations extérieurs au processus de la CSCE.

A cette fin, les Etats participants ont décidé ce qui suit :

Relations avec les organisations internationales (2) Les Etats participants, confirmant les engagements auxquels ils ont souscrit aux ter- mes de la Charte des Nations Unies, déclarent que la CSCE est un accord régional au sens du Chapitre VIII de la Charte des Nations Unies et qu’elle constitue en cette qua- lité un lien important entre la sécurité en Europe et la sécurité mondiale. (…)

(3) Rappelant les décisions pertinentes du Document de Prague, les Etats participants favoriseront des contacts plus étroits et une meilleure coopération pratique avec les organisations internationales appropriées.

(…)

Les engagements de la dimension humaine de l’OSCE 27 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

Relations avec les Etats méditerranéens non participants (7) Rappelant les dispositions de l’Acte final et des autres documents pertinents de la CSCE et conformément à la pratique établie, les Etats méditerranéens non partici- pants continueront à être invités à contribuer aux activités de la CSCE.

(…)

Relations avec les Etats non participants (9) (…) les Etats participants se proposent d’approfondir leur coopération et de resserrer leurs liens avec des Etats non participants, comme le Japon, qui s’intéressent à la CSCE, souscrivent à ses principes et objectifs et sont activement engagés dans la coopération européenne dans le cadre d’organisations compétentes en la matière.

Lisbonne 1996 (Déclaration sur un modèle de sécurité commun et globale pour l’Eu- rope du XXIe siècle) 5. Nous reconnaissons que, dans le cadre de l’OSCE, les Etats sont (…) responsables les uns envers les autres de l’application de leurs engagements.

Istanbul 1999 (Charte de sécurité européenne : III. Notre réponse commune) 14. (…) Aujourd’hui, nous nous engageons à prendre des mesures communes basées sur la coopération, à la fois au sein de l’OSCE et par l’intermédiaire des organisations dont nous sommes membres, afin d’offrir une aide aux Etats participants pour qu’ils respec- tent mieux les principes et engagements de l’OSCE. Nous renforcerons les instruments de coopération existants et en élaborerons de nouveaux afin de répondre efficacement aux demandes d’aide émanant des Etats participants. (…)

Maastricht 2003 (Stratégie de l’OSCE visant à faire face aux menaces pour la sécurité et la stabilité au XXIe siècle) Coopération avec d’autres organisations et institutions internationales 52. (…) L’interaction de l’OSCE avec d’autres organisations et institutions se fonde sur la Plate‑forme pour la sécurité coopérative. Dans ce document, les Etats participants se sont engagés à tenter de renforcer la cohérence opérationnelle et politique parmi tous les organes traitant de la sécurité, à la fois en contrant les menaces spécifiques et en for- mulant des réponses face aux nouvelles menaces et aux nouveaux défis. (…)

53. Notre coopération avec les autres organisations et institutions englobe actuelle- ment le dialogue politique, la coordination et la coopération structurée sur des ques- tions régionales ou thématiques dans toute la région de l’OSCE, sur la base de valeurs et d’objectifs communs. (…)

54. L’OSCE cherche à étendre ses relations avec toutes les organisations et institutions concernées par la promotion d’une sécurité globale dans l’espace de l’OSCE (…).

28 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Partenaires de la mise en œuvre

2.3.3 Individus, défenseurs des droits de l’homme et organisations non gouvernementales Helsinki 1975 (Questions relatives à la sécurité en Europe : 1. (a) Déclaration sur les principes régissant les relations mutuelles des Etats participants – Principe VII-IX) VII. Respect des droits de l’homme et des libertés fondamentales, y compris la liberté de pensée, de conscience, de religion ou de conviction

(…)

Les Etats participants reconnaissent l’importance universelle des droits de l’homme et des libertés fondamentales (…).

(…)

Ils confirment le droit de l’individu de connaître ses droits et devoirs dans ce domaine et d’agir en conséquence.

(…)

IX. Coopération entre les Etats

(…)

Ils confirment que (…) les organisations et les personnes ont un rôle propre et positif à jouer en contribuant à atteindre ces objectifs de leur coopération.

Madrid 1983 (Questions relatives à la sécurité en Europe : Principes) [Les Etats participants] rappellent le droit de l’individu de connaître ses droits et devoirs dans le domaine des droits de l’homme et des libertés fondamentales, et d’agir en consé- quence, en conformité avec l’Acte final ; ils prendront, dans leurs pays respectifs, les mesures nécessaires pour garantir effectivement ce droit.

Vienne 1989 (Questions relatives à la sécurité en Europe : Principes) (12) [Les Etats participants] se déclarent déterminés à garantir l’exercice effectif des droits de l’homme et des libertés fondamentales (…).

(13) A cet égard,

(…)

(13.3) – ils publieront et diffuseront le texte de 1’Acte final, du Document de clôture de Madrid, du présent document et de tous les instruments internationaux pertinents qui concernent les droits de l’homme, de telle sorte que ces documents soient disponibles dans leur intégralité, connus le plus largement possible et accessibles à tout un chacun sur leur territoire, en particulier par le réseau des bibliothèques publiques ;

(13.4) – ils garantiront effectivement le droit de chacun de connaître ses droits et devoirs dans ce domaine et d’agir en conséquence, et, à cette fin, publieront et rendront

Les engagements de la dimension humaine de l’OSCE 29 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

accessibles toute la législation, la réglementation et les procédures relatives aux droits de l’homme et aux libertés fondamentales ;

(13.5) – ils respecteront le droit de leurs citoyens de contribuer activement, à titre indi- viduel ou en association avec d’autres, à la promotion et à la protection des droits de l’homme et des libertés fondamentales ;

(13.6) – ils encourageront 1’étude, dans les écoles et autres établissements d’enseigne- ment, de la promotion et de la protection des droits de l’homme et des libertés fonda- mentales ;

(…)

(13.8) – ils veilleront à ce qu’aucune personne qui exerce, manifeste 1’intention d’exer- cer ou cherche à exercer ces droits et libertés, ni aucun membre de sa famille, ne subisse de ce fait quelque discrimination que ce soit ;

(13.9) – ils veilleront à ce que des recours effectifs et une information complète au sujet de ceux‑ci soient à la disposition des personnes qui font valoir qu’il y a eu violation des droits de l’homme et des libertés fondamentales à leur endroit ; entre autres, ils leur donneront effec­tivement la possibilité de se prévaloir :

• du droit de chacun de présenter un recours devant des organes exécutifs, législatifs, judiciaires ou administratifs ; • du droit d’être entendues équitablement et publiquement, dans un délai raisonnable, par un tribunal indépendant et impartial, et entre autres d’y invoquer des arguments juri­diques et d’y être représentées par l’avocat de leur choix ; • du droit d’être promptement et officiellement informées de la suite donnée a tout appel, y compris des motifs juridiques sur lesquels se fonde la décision. Cette infor- mation sera communiquée en règle générale par écrit et, en tout état de cause, d’une façon qui permette à l’intéressé d’utiliser effectivement d’autres voies de recours dis- ponibles. (…)

(26) (…) A cette fin, ils respecteront le droit des personnes d’observer et promouvoir l’application des dispositions de la CSCE et de s’associer avec d’autres dans ce but. Ils faciliteront les contacts directs et la communication entre ces personnes, ces institu- tions et ces organisations à l’intérieur de leurs frontières et entre eux, et élimineront, lorsqu’ils existent, les obstacles juridiques et administratifs incompatibles avec les dis- positions de la CSCE. Ils faciliteront aussi l’accès à l’information sur la mise en œuvre des dispositions de la CSCE et la libre expression d’opinions sur ces questions.

Copenhague 1990 [Les Etats participants] reconnaissent que la coopération entre eux, ainsi que la par- ticipation active de personnes, groupes ou groupements, organisations et institutions

30 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Partenaires de la mise en œuvre

seront essentielles pour assurer la poursuite des progrès permettant la réalisation de leurs objectifs communs.

(…)

(10) Réaffirmant leur engagement de garantir effectivement les droits de chacun de connaître les droits de l’homme et les libertés fondamentales et d’agir en conséquence, et de contribuer activement, à titre individuel ou en association avec d’autres, à leur pro- motion et à leur protection, les Etats participants s’engagent :

(10.1) — à respecter le droit de chacun, à titre individuel ou en association avec d’autres, de demander, recevoir et communiquer librement des opinions et des informations concernant les droits de l’homme et les libertés et ces informations ;

(10.2) — à respecter les droits de chacun, à titre individuel ou en association avec d’autres, d’étudier et d’examiner comment les droits de l’homme et les libertés fon- damentales sont respectés et d’élaborer et d’examiner des idées propres à améliorer la protection des droits de l’homme ainsi que des moyens plus efficaces pour garantir leur conformité avec les normes internationales communément admises en matière de droits de l’homme ;

(10.3) — à veiller à ce que toute personne soit autorisée à exercer le droit d’association, y compris le droit effectif de créer des organisations non gouvernementales cherchant à promouvoir et à protéger les droits de l’homme et les libertés fondamentales, notam- ment des syndicats et des groupes de surveillance en matière de droits de l’homme, ainsi que d’adhérer à ces organisations et de participer à leurs activités ;

(10.4) — à permettre aux membres de ces groupes et organisations d’avoir librement accès à des organismes similaires, à l’intérieur et hors des frontières de leur pays, ainsi qu’à des organisations internationales et de communiquer avec ceux‑ci, de procéder à des échanges, de nouer des contacts et de coopérer avec ces groupements et organisa- tions, de même que de solliciter, de recevoir et d’utiliser des contributions financières volontaires d’origine nationale et internationale dans la mesure prévue par la loi, afin de promouvoir et de protéger les droits de l’homme et les libertés fondamentales.

Paris 1990 (Une nouvelle ère de démocratie, de paix et d’unité) Nous rappelons le rôle important joué par les organisations non gouvernementales, les groupes religieux et autres et les particuliers dans la réalisation des objectifs de la CSCE et nous continuerons à faciliter leurs activités en faveur de la mise en œuvre des engage- ments de la CSCE par les Etats participants. Pour accomplir les tâches importantes qui sont les leurs, ces organisations, groupes et particuliers doivent être associés de manière appropriée aux activités et aux nouvelles structures de la CSCE.

Moscou 1991 Les Etats participants (…) se déclarent résolus à remplir tous leurs engagements rela- tifs à la dimension humaine et à résoudre par des moyens pacifiques toute question

Les engagements de la dimension humaine de l’OSCE 31 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

connexe, individuellement et collectivement, sur la base du respect mutuel et de la coo- pération. Dans ce contexte, ils reconnaissent que la participation active de personnes, de groupes, d’organisations ou d’institutions est essentielle à la poursuite des progrès dans cette voie.

(…)

(43) Les Etats participants reconnaîtront comme ONG les organisations qui se décla- rent comme telles, selon les procédures nationales en vigueur, et faciliteront à ces orga- nisations le libre exercice de leurs activités sur leur territoire ; à cet effet, ils

(43.1) — s’efforceront de trouver les moyens de renforcer encore les possibilités de contacts et d’échanges de vues entre les ONG, les autorités nationales et les institutions publiques compétentes ;

(43.2) — s’efforceront de faciliter le séjour dans leur pays d’ONG venues de l’un quel- conque des Etats participants pour observer la situation en ce qui concerne la dimen- sion humaine ;

(43.3) — accueilleront favorablement les activités des ONG, notamment lorsqu’elles observent l’application des engagements souscrits dans le cadre de la CSCE au titre de la dimension humaine ;

(43.4) — autoriseront les ONG, étant donné l’importance de leur rôle dans le cadre de la dimension humaine de la CSCE, à porter leurs vues à la connaissance de leurs gouver- nements respectifs et des gouvernements de tous les autres Etats participants au cours des futurs travaux de la CSCE sur la dimension humaine.

(43.5) Au cours des travaux futurs de la CSCE sur la dimension humaine, les ONG auront la possibilité de distribuer à toutes les délégations des contributions écrites sur des questions déterminées relevant de la dimension humaine de la CSCE.

(43.6) Le Secrétariat de la CSCE, dans les limites des ressources dont il disposera, fera droit aux demandes adressées par des ONG pour obtenir des documents de la CSCE ne faisant pas l’objet d’une distribution restreinte.

Helsinki 1992 (Déclaration du sommet) 7. Nous confirmons la validité des principes directeurs et des valeurs communes ins- crits dans l’Acte final de Helsinki et dans la Charte de Paris. Ils sont la base des respon- sabilités des Etats l’un envers l’autre et des gouvernements envers leur peuple. Ils sont la conscience collective de notre communauté. (…) Nous soulignons le droit démocratique des citoyens d’exiger de leur gouvernement le respect de ces valeurs et de ces normes.

Helsinki 1992 (Décisions : IV. Relations avec les organisations internationales, relations avec les états non participants, rôles des organisations non gouvernementales (ONG)) (1) (…) Les efforts pour établir un ordre durablement pacifique et démocratique et gérer le processus d’évolution ne peuvent aboutir sans des apports plus structurés et plus

32 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Partenaires de la mise en œuvre

substantiels de la part de groupes, d’individus, d’Etats et d’organisations extérieurs au processus de la CSCE.

A cette fin, les Etats participants ont décidé ce qui suit :

(…)

Accroissement de la transparence des activités de la CSCE, promotion de la compré- hension du rôle de la CSCE, élargissement du rôle des ONG

(12) Les Etats participants augmenteront la transparence des institutions et des structu- res de la CSCE et veilleront à diffuser largement des informations sur la CSCE.

(…)

(14) Les Etats participants offriront aux organisations non gouvernementales des occa- sions de participer davantage aux activités de la CSCE.

(15) En conséquence :

• ils appliqueront à toutes les réunions de la CSCE les directives antérieurement conve- nues en ce qui concerne l’accès des ONG à certaines réunions de la CSCE ; • ils offriront aux ONG l’accès à toutes les séances plénières des conférences d’examen, des séminaires, ateliers et réunions du BIDDH, du CHF lorsqu’il siégera en tant que Forum économique, des réunions sur la mise en oeuvre des engagements concernant les droits de l’homme et d’autres réunions d’experts. En outre, chaque réunion pourra décider d’admettre les ONG à certaines autres séances ; • ils donneront pour instructions aux directeurs des institutions de la CSCE et aux secrétaires exécutifs des réunions de la CSCE de désigner un "chargé de liaison avec les ONG" parmi les membres de leur personnel ; • ils désigneront, le cas échéant, un fonctionnaire de leur ministère des affaires étrangè- res et un membre de leur délégation aux réunions de la CSCE comme responsables de la liaison avec les ONG ; • ils favoriseront, entre les réunions de la CSCE, les contacts et les échanges de vues entre les ONG et les autorités nationales et institutions gouvernementales compéten- tes ; • ils faciliteront, au cours des réunions de la CSCE, des discussions informelles entre les représentants des Etats participants et ceux des ONG ; • ils encourageront la présentation par les ONG aux institutions et réunions de la CSCE de communications écrites dont les intitulés pourront être gardés et communiqués aux Etats participants qui le demanderont ; • ils prodigueront des encouragements aux ONG qui organiseront des séminaires sur des questions concernant la CSCE ;

Les engagements de la dimension humaine de l’OSCE 33 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

• ils notifieront aux ONG par le canal des institutions de la CSCE les dates des futu- res réunions de la CSCE en indiquant, dans la mesure du possible, les sujets qui seront traités ainsi que, sur demande, le déclenchement des mécanismes de la CSCE qui aura été porté à la connaissance de tous les Etats participants.

(16) Les dispositions ci-dessus ne s’appliqueront pas aux personnes ou organisations qui recourent à la violence ou excusent publiquement le terrorisme ou le recours à la vio- lence.

(17) Les Etats participants utiliseront tous les moyens appropriés pour faire connaître aussi largement que possible dans leur société la CSCE, ses principes, engagements et activités.

Istanbul 1999 (Charte de sécurité européenne : III. Notre réponse commune) 27. Les organisations non gouvernementales (ONG) peuvent jouer un rôle crucial dans l’action en faveur des droits de l’homme, de la démocratie et de l’état de droit. Elles font partie intégrante d’une société civile forte. Nous nous engageons à renforcer la capacité des ONG de contribuer pleinement au développement de la société civile et au respect des droits de l’homme et des libertés fondamentales.

2.3.4 Institutions de l’OSCE relatives à la dimension humaine Istanbul 1999 (Charte de sécurité européenne : III. Notre réponse commune) 14. (…) Nous confirmons, chacun d’entre nous, que nous sommes prêts à honorer plei- nement nos engagements. Nous avons également pour responsabilité commune de faire respecter les principes de l’OSCE. Nous sommes par conséquent résolus à coopérer au sein de l’OSCE et avec ses institutions et ses représentants (…). Nous coopérerons, dans un esprit de solidarité et de partenariat, à un examen continu de la mise en oeuvre.

Maastricht 2003 (Stratégie de l’OSCE visant à faire face aux menaces pour la sécurité et la stabilité au XXIe siècle) La réponse de l’OSCE

(…)

20. L’OSCE continuera à jouer un rôle actif dans toute sa région en se servant pleinement de ses institutions — Bureau des institutions démocratiques et des droits de l’homme (BIDDH), Haut Commissaire pour les minorités nationales (HCMN) et Représentant pour la liberté des médias — de ses opérations de terrain et de son Secrétariat. Ces ins- truments sont importants pour aider tous les Etats participants à exécuter leurs engage- ments, notamment le respect des droits de l’homme, de la démocratie et de la primauté du droit. Dans toutes les activités pertinentes, on recherchera activement des possibi- lités de renforcer la coopération avec l’Assemblée parlementaire et, par son intermé- diaire, avec les parlements nationaux.

34 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Partenaires de la mise en œuvre

A. Bureau des institutions démocratiques et des droits de l’homme (BIDDH) I. Cadre général, y compris les tâches-clés supplémentaires Paris 1990 (Une nouvelle ère de démocratie, de paix et d’unité) Nous décidons d’établir un Bureau des élections libres à Varsovie, pour faciliter les contacts et l’échange d’informations sur les élections dans les Etats participants.

Paris 1990 (Document complémentaire relatif à la mise en application de certaines dispositions contenues dans la Charte de Paris pour une nouvelle Europe) G. Le bureau des élections libres

1. Le rôle du Bureau des élections libres sera de faciliter les contacts et l’échange d’in- formations sur les élections dans les Etats participants. Le Bureau favorisera ainsi l’ap- plication des dispositions des paragraphes 6, 7 et 8 du Document de la Réunion de Co- penhague de la Conférence sur la dimension humaine de la CSCE (les dispositions per- tinentes figurent à l’Annexe I).

2. A cette fin, le Bureau :

• recueillera des informations, y compris les informations fournies par les autorités compétentes des Etats participants, sur les dates, les procédures et les résultats offi- ciels des élections nationales organisées dans les Etats participants, établira des rap- ports d’observation des élections et fournira, sur demande, ces informations et rap- ports aux gouvernements, parlements et organisations privées intéressées ;

• sera chargé de faciliter les contacts entre les gouvernements, les parlements et les organisations privées désireux d’observer le déroulement des élections et les autorités compétentes des Etats où les élections doivent se dérouler ;

• organisera et accueillera, à la demande des Etats participants, des séminaires ou autres réunions ayant trait aux procédures électorales et aux institutions démocratiques.

3. Le Bureau tiendra compte des travaux d’autres institutions actives dans ce domaine et coopérera avec elles.

4. Le Bureau exécutera les autres tâches que le Conseil lui assignera.

(…)

Annexe I (Copenhague 1990)

(6) Les Etats participants déclarent que la volonté du peuple, exprimée librement et équitablement dans le cadre d’élections périodiques et honnêtes, est le fondement de l’autorité et de la légitimité de tout gouvernement. Les Etats participants respecteront en conséquence le droit de leurs citoyens de participer au gouvernement de leur pays, soit directement, soit par l’intermédiaire de représentants librement choisis par eux dans le cadre d’élections équitables. Ils reconnaissent la responsabilité qui leur incombe

Les engagements de la dimension humaine de l’OSCE 35 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

de défendre et de protéger, conformément à leurs lois, à leurs obligations internatio- nales en matière de droits de l’homme et à leurs engagements internationaux, l’ordre démocratique librement établi par la volonté du peuple contre les activités de person- nes, groupements ou organisations qui prennent part ou qui refusent de renoncer à des actes de terrorisme ou de violence visant à renverser cet ordre ou celui d’un autre Etat participant.

(7) Pour faire en sorte que la volonté du peuple soit le fondement des autorités publi- ques, les Etats participants

(7.1) — organiseront des élections libres à intervalles raisonnables, comme le prévoit la loi ;

(7.2) — permettront que tous les sièges, dans au moins une des chambres du pouvoir législatif national, soient librement disputés dans le cadre d’un vote populaire ;

(7.3) — garantiront un suffrage universel et égal aux citoyens majeurs ;

(7.4) — veilleront à ce que les votes soient émis au scrutin secret ou suivant une procé- dure équivalente assurant la liberté du vote et à ce qu’ils soient recensés et présentés avec objectivité, les résultats officiels étant rendus publics ;

(7.5) — respecteront le droit des citoyens de solliciter des fonctions politiques ou publi- ques, à titre individuel ou en tant que représentants de partis politiques ou d’organisa- tions, sans discrimination ;

(7.6) — respecteront le droit des individus ainsi que des groupes ou groupements de créer, en toute liberté, leurs propres partis ou autres organisations politiques, et fourni- ront à ces partis et organisations les garanties légales nécessaires pour leur permettre de se mesurer sur la base d’une égalité de traitement devant la loi et les autorités ;

(7.7) — veilleront à ce que la loi et l’ordre public de l’Etat contribuent à faire en sorte que les campagnes politiques se déroulent dans un climat d’équité et de liberté excluant toute pression administrative, violence ou intimidation qui interdirait aux partis et aux candidats d’exposer librement leurs opinions et leurs qualités, ou empêcherait les élec- teurs d’en prendre connaissance et d’en débattre ou de voter sans crainte de sanctions ;

(7.8) — veilleront à ce qu’aucun obstacle d’ordre juridique ou administratif ne s’oppose au libre accès aux médias sur la base de la non-discrimination pour tous les groupes ou groupements politiques et toutes les personnes désirant participer à des élections ;

(7.9) — veilleront à ce que les candidats qui obtiennent le nombre nécessaire de voix requis par la loi soient dûment investis de leur fonction, et qu’il leur soit permis de conserver celle-ci jusqu’à ce que leur mandat arrive à expiration ou qu’il y soit mis un terme pour toute autre raison d’une manière prescrite par la loi conformément à des procédures parlementaires et constitutionnelles démocratiques.

36 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Partenaires de la mise en œuvre

(8) Les Etats participants estiment que la présence d’observateurs, étrangers et natio- naux, est de nature à améliorer le déroulement des élections dans les Etats où elles ont lieu. En conséquence, ils invitent des observateurs de tout autre Etat participant à la CSCE, ainsi que de toute institution et organisation privée compétente qui le souhaite- rait, à suivre le déroulement de la procédure de leurs élections nationales, dans la me- sure prévue par la loi. Ils s’appliqueront également à faciliter un accès analogue pour les élections organisées à un niveau inférieur au niveau national. Ces observateurs s’enga- geront à ne pas s’immiscer dans les opérations électorales.

Prague 1992 (Document de Prague sur le développement ultérieur des institutions et structures de la CSCE : III. La dimension humaine) 9. Afin d’élargir la coopération concrète entre les Etats participants dans le domaine de la dimension humaine, les ministres ont décidé d’attribuer des fonctions supplémen- taires au Bureau des élections libres qui s’appellera désormais Bureau des institutions démocratiques et des droits de l’homme.

10. Sous la direction générale du CHF, le Bureau devrait, entre autres :

• organiser une brève réunion de la CSCE au siège du Bureau des institutions démocra- tiques et des droits de l’homme pour examiner la mise en oeuvre des engagements de la CSCE dans le domaine de la dimension humaine chaque année au cours de laquelle il n’est pas tenu de réunion de suivi. (…) ;

• servir de cadre institutionnel pour partager et échanger des informations sur 1’assis- tance technique et les compétences disponibles, ainsi que sur les programmes natio- naux et internationaux destinés à aider les démocraties nouvelles dans le développe- ment de leurs institutions ;

• faciliter les contacts entre ceux qui offrent de telles ressources et ceux qui souhaitent en faire usage ;

• développer la coopération avec le Conseil de l’Europe afin de mettre à profit sa base de données portant sur ces ressources et ces services ;

• établir des contacts avec des organisations non gouvernementales actives dans le domaine du développement d’institutions démocratiques, afin de permettre aux Etats participants intéressés de faire usage des vastes ressources et des larges compétences de ces organisations ;

• faciliter la coopération en matière de formation et d’éducation dans des disciplines portant sur les institutions démocratiques ;

• organiser avec des représentants de tous les Etats participants des réunions et des séminaires ayant trait au développement et à la revitalisation des institutions démo- cratiques, par exemple séminaire consacré aux organes de presse libres et, en temps opportun, un séminaire sur les migrations. Ces réunions et séminaires se tiendront à Varsovie à moins qu’il n’en soit décidé autrement.

Les engagements de la dimension humaine de l’OSCE 37 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

11. Pour éviter tout chevauchement des tâches, particulièrement dans les domaines mentionnés plus haut, les ministres ont donné pour directive au Bureau de collaborer étroitement avec les autres institutions qui sont actives dans le domaine du développe- ment d’institutions démocratiques et des droits de l’homme, en particulier le Conseil de l’Europe et la Commission européenne « Démocratie par le droit ».

12. Le CHF examinera sur une base annuelle la nécessité d’organiser des réunions et des séminaires sur la dimension humaine et les institutions démocratiques et il établira un programme de travail.

(…)

14. Le Bureau des institutions démocratiques et des droits de l’homme est désigné pour être l’institution de la CSCE chargée des tâches liées aux missions d’experts et de rap- porteurs conformément au Document de la Réunion de Moscou de la Conférence sur la dimension humaine de la CSCE.

Helsinki 1992 (Décisions : VI. La dimension humaine) (2) Les Etats participants sont fermement déterminés à assurer le plein respect des droits de l’homme et des libertés fondamentales, à observer les règles de l’Etat de droit, à promouvoir les principes de la démocratie et, à cet égard, à édifier, renforcer et pro- téger les institutions démocratiques ainsi qu’à favoriser la tolérance à tous les niveaux de la société. Pour ce faire, ils élargiront le cadre opérationnel de la CSCE, notam- ment en renforçant davantage le BIDDH, de manière à pouvoir échanger de manière plus concrète et utile des informations, des idées et des vues sur des sujets qui les pré- occupent et, entre autres, à être alertés rapidement en cas de tensions et de risque de conflit. Ce faisant, ils concentreront leur attention sur les sujets relevant du domaine de la dimension humaine qui présentent une importance particulière. Ils garderont donc constamment à l’examen la question du renforcement de la dimension humaine, en par- ticulier à une époque de changement.

(…)

Contrôle du respect des engagements pris au titre de la dimension humaine et pro- motion de la coopération dans ce domaine : cadre général (4) Afin d’améliorer et de contrôler le respect des engagements de la CSCE et aussi de promouvoir les progrès dans le domaine de la dimension humaine, les Etats partici- pants sont convenus de renforcer le cadre de leur coopération et, à cette fin, décident ce qui suit :

Accroissement du rôle du BIDDH (5) Sous la direction générale du CHF et en sus des tâches qu’il remplit déjà, telles qu’el- les sont définies dans la Charte de Paris pour une nouvelle Europe et dans le Document de Prague sur le développement ultérieur des institutions et structures de la CSCE, le BIDDH, en tant que principale institution de la dimension humaine :

38 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Partenaires de la mise en œuvre

(5a) aidera à contrôler la mise en oeuvre des engagements pris au titre de la dimension humaine :

• en servant de lieu de rencontre pour les réunions bilatérales en application du paragra- phe 2 et de canal d’information en vertu du paragraphe 3 du mécanisme de la dimen- sion humaine, tel qu’il est décrit dans le Document de clôture de Vienne ; • en prenant connaissance des observations des Etats qui auront reçu des missions de la CSCE intéressant la dimension humaine, autres que celles prévues au titre du mécanisme de la dimension humaine ; il transmettra les rapports de ces missions, ainsi que les éventuelles observations, à tous les Etats participants en vue de leur exa- men lors de la réunion sur la mise en œuvre ou de la conférence d’examen suivante ; • en participant à des missions ou en les organisant, lorsqu’il en sera chargé par le Conseil ou le CHF ; (5b) servira de centre d’échange des informations concernant : • l’état d’exception, conformément au paragraphe 28.10 du Document de la Réunion de Moscou de la Conférence sur la dimension humaine ; • les listes d’experts et l’aide pouvant être offerte, par exemple en matière de recense- ment, ou sur le fonctionnement de la démocratie à l’échelon local et régional, ainsi que sur la tenue de séminaires nationaux sur ces questions ; (5c) apportera son appui aux autres activités menées dans le domaine de la dimension humaine, y compris à la mise en place des institutions démocratiques : • en exécutant les tâches définies dans le "Programme d’aide coordonnée à l’intention des Etats participants récemment admis" ; • en organisant à la demande d’Etats participants des "séminaires sur le processus démocratique". Les mêmes modalités d’organisation que celles énoncées dans le "Pro- gramme d’appui coordonné à l’intention des Etats participants récemment admis" s’appliqueront à ces séminaires ; • en contribuant, dans la limite des ressources dont il dispose, à la préparation de sémi- naires organisés à la demande d’un ou de plusieurs Etats participants ; • en fournissant, s’il y a lieu, des moyens au Haut Commissaire pour les minorités natio- nales ; • en communiquant, s’il y a lieu, avec les organisations internationales et non gouverne- mentales compétentes ; • en tenant des consultations et en collaborant avec les organes compétents du Conseil de l’Europe et des organes qui lui sont associés, ainsi qu’en examinant comment ces organes peuvent contribuer, selon les besoins, aux activités du BIDDH. Ce dernier communiquera également, à la demande des Etats participants, des informations sur les programmes qui sont réalisés dans le cadre du Conseil de l’Europe et sont ouverts à tous les Etats participants.

Les engagements de la dimension humaine de l’OSCE 39 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

(6) Dans le cadre des activités qu’il entreprendra sur des questions relatives à la dimen- sion humaine, le BIDDH pourra notamment contribuer au déclenchement d’une alerte rapide dans le cadre de la prévention des conflits.

Mécanisme de la dimension humaine (7) Afin d’aligner le mécanisme de la dimension humaine sur les structures et les insti- tutions actuelles de la CSCE, les Etats participants décident ce qui suit :

Tout Etat participant qui le juge nécessaire peut communiquer aux autres Etats partici- pants, par l’intermédiaire du BIDDH – qui peut également servir de lieu de rencontre pour les réunions bilatérales organisées au titre du paragraphe 2 – ou par la voie diplo- matique, des informations sur des situations et des cas qui ont fait l’objet de deman- des au titre des paragraphes 1 ou 2 du chapitre « Dimension humaine de la CSCE » du Document de clôture de Vienne. Ces informations peuvent être discutées aux réunions du CHF, aux réunions sur la mise en oeuvre des engagements concernant la dimension humaine et aux conférences d’examen.

(…)

Mise en oeuvre Réunions sur la mise en œuvre des engagements concernant la dimension humaine

(9) Chaque année au cours de laquelle il n’y a pas de conférence d’examen, le BIDDH organisera, à son siège, une réunion d’experts de tous les Etats participants pendant trois semaines pour faire le bilan de la mise en œuvre des engagements pris par la CSCE au titre de la dimension humaine. La réunion remplira les tâches suivantes :

(9a) échange de vues approfondi sur la mise en œuvre des engagements concernant la dimension humaine, y compris un débat sur les informations fournies conformément au point 4 du mécanisme de la dimension humaine et sur les aspects de la dimension humaine abordés dans les rapports de mission de la CSCE, ainsi qu’un examen des moyens permettant d’améliorer la mise en œuvre ;

(9b) évaluation des procédures de contrôle du respect des engagements.

(10) La réunion sur la mise en œuvre pourra appeler l’attention du CHF sur les mesures qu’elle jugera nécessaires pour améliorer la mise en œuvre.

(11) La réunion sur la mise en œuvre n’établira pas de texte négocié.

(12) Les contributions écrites et les éléments d’information seront considérés ou non comme des documents à distribution restreinte, selon l’indication fournie par l’Etat qui les présentera.

(13) Les réunions sur la mise en œuvre comporteront des séances officielles et des séan- ces informelles. Toutes les séances officielles seront publiques. Par ailleurs, les Etats par- ticipants pourront décider, au cas par cas, de rendre publiques des séances informelles.

40 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Partenaires de la mise en œuvre

(14) Le Conseil de l’Europe, la Commission européenne «Démocratie par la loi» et la Banque européenne pour la reconstruction et le développement (BERD), ainsi que les autres organisations et institutions internationales compétentes, seront encouragés par la réunion sur la mise en œuvre à assister aux séances et à y présenter des contribu- tions.

(15) Les organisations non gouvernementales ayant l’expérience voulue dans le domaine de la dimension humaine sont invitées ŕ présenter des communications écrites ŕ la réu- nion sur la mise en œuvre, par exemple par l’intermédiaire du BIDDH, et pourront être invitées par la réunion sur la mise en œuvre, après présentation de leurs communica- tions écrites, ŕ prendre, le cas échéant, la parole sur certains points.

(16) Lors de la réunion sur la mise en œuvre, aucune séance officielle ne sera prévue pendant deux demi-journées afin de ménager de plus grandes possibilités de contact avec les ONG. A cette fin, une salle sera mise ŕ la disposition des ONG, sur le lieu de la réunion.

Séminaires de la CSCE sur la dimension humaine (17) Sous la direction générale du CHF, le BIDDH organisera des séminaires de la CSCE sur la dimension humaine qui traiteront de questions précises présentant un intérêt particulier pour la dimension humaine et correspondant ŕ des préoccupations poli- tiques actuelles. Le CHF établira un programme de travail annuel dans lequel seront indiqués le titre et les dates de ces séminaires. L’ordre du jour et les modalités de cha- que séminaire seront approuvés par le CHF au plus tard trois mois avant le séminaire. Ce faisant, le CHF prendra en considération les points de vue exprimés par le BIDDH. A moins qu’il n’en soit décidé autrement, les séminaires se tiendront au siège du BIDDH et dureront au maximum une semaine. Le programme de travail tiendra dûment compte des travaux conduits par les organisations et institutions internationales compétentes.

(18) Les séminaires seront organisés dans un esprit d’ouverture et de souplesse. Des organisations et institutions internationales compétentes pourront être invitées à parti- ciper et à contribuer aux travaux des séminaires. Les experts indépendants participant au séminaire en tant que membres d’une délégation nationale seront également libres de prendre la parole à titre individuel.

(19) Les séminaires de la CSCE comprendront des séances officielles et des séances informelles. Toutes les séances officielles seront publiques. Par ailleurs, les Etats partici- pants pourront décider, au cas par cas, de rendre publiques des séances informelles.

(20) Les séminaires de la CSCE n’établiront pas de textes négociés ni de programmes de suivi.

(21) Les contributions des experts indépendants seront considérées comme des docu- ments à distribution non restreinte.

Les engagements de la dimension humaine de l’OSCE 41 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

Rome 1993 (Décisions : IV. La dimension humaine) 3. Le processus de consultation politique et les missions de la CSCE.

(…)

• Une plus grande importance sera donnée aux questions concernant la dimension humaine dans les mandats des missions de la CSCE ainsi que dans les rapports de suivi des missions. A cette fin, le BIDDH se verra attribuer un rôle plus important dans la préparation des missions de la CSCE, entre autres dans la fourniture d’infor- mations et d’avis aux missions conformément à son expertise.

(…)

4. Le Bureau des institutions démocratiques et des droits de l’homme

Les ministres ont décidé d’élargir les fonctions et les opérations du BIDDH. Celui-ci développera notamment ses activités, dans le cadre de son mandat, dans les domaines suivants :

• élaboration d’une base de données élargie concernant des experts des domaines rela- tifs à la dimension humaine. Les Etats participants et les organisations non gouver- nementales sont invités à faire connaître au BIDDH les experts disponibles dans les domaines relatifs à la dimension humaine ;

(…)

• coopération accrue avec les organisations internationales compétentes afin de coor- donner les activités et de déterminer les éventuels domaines de collaboration ;

• recueil des informations fournies par les ONG ayant une expérience pertinente dans le domaine de la dimension humaine ;

• utilisation du BIDDH en tant que point de contact pour les informations fournies par les Etats participants conformément aux engagements de la CSCE ;

• diffusion d’informations d’ordre général sur la dimension humaine et le droit humani- taire international.

Budapest 1994 (Décisions : VIII. La dimension humaine) 8. Le BIDDH, en tant que principale institution de la dimension humaine, en consul- tation avec le Président en exercice, participera à titre consultatif aux discussions du Conseil supérieur et du Conseil permanent en faisant rapport à intervalles réguliers sur ses activités et en donnant des informations sur les questions de mise en œuvre. Le BIDDH fournira une documentation de référence pour l’examen annuel de la mise en œuvre et, en cas de besoin, précisera ou complétera les informations reçues. Agissant en étroite consultation avec le Président en exercice, le Directeur du BIDDH pourra propo- ser d’autres mesures.

42 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Partenaires de la mise en œuvre

9. Les Etats participants reconnaissent la nécessité d’une coopération renforcée par l’in- termédiaire du BIDDH avec d’autres organisations et institutions internationales qui traitent de la dimension humaine, notamment le Haut Commissaire des Nations Unies aux droits de l’homme pour l’échange d’informations, y compris de rapports, et le lan- cement de nouvelles activités, comme l’expose le présent document.

10. Les Etats participants décident :

(…)

• D’assigner au BIDDH la fonction de centre d’échange des informations sur les ques- tions relatives aux médias dans la région et d’encourager les gouvernements, les jour- nalistes et les ONG à fournir au BIDDH des informations sur la situation des médias.

11. Le BIDDH sera consulté avant que soit adopté le mandat d’une mission de la CSCE et il contribuera au suivi des rapports des missions en fonction des décisions du Conseil permanent. Les connaissances du BIDDH au sujet des experts de la dimension humaine devraient être mises à profit pour compléter l’effectif des missions de la CSCE. Ces mis- sions chargeront également un de leurs membres d’assurer la liaison avec le BIDDH et avec les ONG sur des questions relatives à la dimension humaine.

(…)

13. Les dispositions mentionnées au chapitre du présent document sur la dimension humaine ne modifient en rien les mandats du BIDDH et du HCMN.

Séminaires du BIDDH

14. Le nombre de séminaires importants sur la dimension humaine sera ramené, en règle générale, à deux par an. Ces séminaires seront consacrés à des sujets présentant l’intérêt le plus large.

L’accent sera davantage mis sur les séminaires régionaux. Le cas échéant, ces séminaires feront partie du Programme d’appui coordonné. Il conviendrait d’obtenir la pleine par- ticipation des Etats de la région dans laquelle ils se tiennent. (…)

(…)

43. Ils ont décidé de renforcer encore la capacité du BIDDH à donner des avis autori- sés sur les questions relevant de la dimension humaine au titre du Programme d’appui coordonné. En vue de répondre aux demandes de conseils émanant des Etats nouvelle- ment indépendants concernés par tous les aspects de la démocratisation, ils ont décidé que le recours à des experts itinérants dans le cadre du Programme d’appui coordonné contribuerait à renforcer utilement le rôle du BIDDH.

Les engagements de la dimension humaine de l’OSCE 43 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

II. Tâches-clés supplémentaires relatives aux élections Rome 1993 (Décisions : IV. La dimension humaine) 4. Le Bureau des institutions démocratiques et des droits de l’homme

Les ministres ont décidé d’élargir les fonctions et les opérations du BIDDH. Celui-ci développera notamment ses activités, dans le cadre de son mandat, dans les domaines suivants :

(…)

• renforcement du rôle joué par le BIDDH dans l’observation globale des élections ; (…)

Budapest 1994 (Décisions : VIII. La dimension humaine) 12. Le BIDDH jouera un rôle accru dans l’observation des élections avant, pendant et après le scrutin. Dans ce contexte, le BIDDH évaluera les conditions nécessaires à la liberté et à l’indépendance des médias.

Les Etats participants demandent que la coordination entre les divers organismes d’ob- servation des élections soit améliorée et chargent le BIDDH de mettre en place, en consultation avec toutes les organisations intéressées, un cadre dans ce domaine.

En vue de renforcer la préparation et les procédures d’observation des élections, le BIDDH établira un manuel pour les observateurs des élections et établira un calendrier à horizon mobile pour les élections à venir.

Maastricht 2003 (Décisions : Décision No. 5/03 sur les élections) Le Conseil ministériel,

(…)

Charge le BIDDH d’examiner les moyens d’améliorer l’efficacité de son assistance aux Etats participants pour le suivi des recommandations faites dans les rapports d’observa- tion des élections par le BIDDH et d’informer le Conseil permanent des progrès accom- plis dans l’exécution de cette tâche ;

(…)

III. Point de contact du BIDDH pour les questions concernant les Roms et les Sinti Budapest 1994 (Décisions : VIII. La dimension humaine) 23. Les Etats participants décident de désigner, à l’intérieur du BIDDH, un point de contact pour les questions concernant les Roms et les Sinti (Tziganes). Le BIDDH devra :

44 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Partenaires de la mise en œuvre

• Servir de centre d’échange des informations sur les questions concernant les Roms et les Sinti (Tziganes), y compris les informations sur la mise en œuvre des engagements concernant les Roms et les Sinti (Tziganes) ;

• Faciliter les contacts sur les questions concernant les Roms et les Sinti (Tziganes) entre Etats participants, organisations et institutions internationales et ONG ;

• Maintenir et élargir les contacts sur ces questions entre les institutions de la CSCE et d’autres organisations et institutions internationales.

Pour remplir ces tâches, le BIDDH utilisera pleinement les ressources existantes. Dans ce contexte, les Etats membres se félicitent que certaines organisations de Roms et de Sinti (Tziganes) aient annoncé leur intention d’apporter des contributions volontaires.

24. Les Etats participants se félicitent des activités relatives aux Roms et aux Sintis (Tzi- ganes) menées dans le cadre d’autres organisations et institutions internationales, en particulier au Conseil de l’Europe.

Oslo 1998 (Décisions : Décision sur le renforcement des capacités de l’OSCE pour les questions concernant les Roms et les Sintis) Le Conseil ministériel,

Ayant à l’esprit les engagements actuels de l’OSCE en ce qui concerne les Roms et les Sintis, et

Rappelant la décision prise au Sommet de Budapest de désigner, au sein du BIDDH, un point de contact pour les questions concernant les Roms et les Sintis (Tziganes),

1. Décide d’accroître la capacité de l’OSCE en la matière en renforçant le point de contact actuel du BIDDH pour les questions concernant les Roms et les Sintis, qui aura notamment les priorités suivantes :

• renforcer l’interaction de l’OSCE avec les gouvernements des Etats participants, avec les représentants des communautés de Roms et de Sintis, de même qu’avec les orga- nisations internationales, les initiatives et les organisations non gouvernementales (ONG) en ce qui concerne les questions des Roms et des Sintis, et en particulier, obte- nir un nouveau renforcement mutuel de la coopération avec le Coordonnateur pour les Roms au Conseil de l’Europe en vue d’éviter toute répétition d’efforts, en prévoyant notamment des consultations régulières avec ces organisations, initiatives et ONG afin d’exploiter les effets de synergie et d’élaborer des approches communes propres à faciliter la pleine intégration des communautés de Roms et de Sintis dans les sociétés au sein desquelles elles vivent, tout en préservant leur identité ;

• renforcer la coopération entre les institutions de l’OSCE et les missions ou présences sur le terrain en ce qui concerne les Roms et les Sintis, le cas échéant ;

Les engagements de la dimension humaine de l’OSCE 45 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

• élaborer, en se basant sur l’apport des Etats participants, des institutions de l’OSCE, et en particulier du Haut Commissaire pour les minorités nationales, des communau- tés de Roms et de Sintis, des ONG, des organisations internationales et d’autres ins- titutions ou initiatives, un programme de travail qui devrait inclure, entre autres, des séminaires, des ateliers ou des centres d’échange d’information ;

• recueillir auprès des Etats participants des informations sur les mesures législatives et autres concernant la situation des Roms et des Sintis afin de les mettre à la disposi- tion de la communauté de l’OSCE, de même que d’autres organisations internationa- les intéressées, et d’élaborer des rapports supplémentaires sur la situation des Roms et des Sintis dans la région de l’OSCE.

2. Décide en outre que le point de contact ne devrait s’occuper que des questions concer- nant les Roms et les Sintis.

Maastricht 2003 (Décisions : Annexe à la Décision No. 2/03 sur la lutte contre la traite des êtres humains ; Plan d’action de l’OSCE pour lutter contre la traite des êtres humains) IV. Prévention de la traite des êtres humains

(…)

Action des institutions et organes de l’OSCE

6. Collecte de données et études

(…)

6.2 Charger le point de contact du BIDDH pour les questions concernant les Roms et les Sintis de continuer à recueillir des données concernant la traite des êtres humains, en particulier des enfants, et ses conséquences sur les communautés de Roms et de Sintis.

Maastricht 2003 (Décisions : Annexe à la Décision No. 3/03 : Plan d’action visant à améliorer la situation des Roms et des Sintis dans l’espace de l’OSCE) III. Lutte contre le racisme et la discrimination (…)

Législation et mesures visant à en assurer le respect (…)

Mesures recommandées aux institutions et aux structures de l’OSCE :

(…)

23. Le BIDDH/Point de contact pour les questions concernant les Roms et les Sintis s’emploiera à promouvoir de meilleures relations entre les organisations non gouverne- mentales (ONG) roms et sintis et les Etats participants.

46 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Partenaires de la mise en œuvre

24. Le Point de contact du BIDDH servira de centre d’échange d’informations sur les initiatives entreprises par les Etats participants et facilitera les échanges d’informations sur les meilleures pratiques.

25. En étroite coopération avec les Etats participants, avec les communautés roms et sintis et, si possible, avec d’autres organisations internationales, et en respectant pleine- ment les lois sur la protection des données personnelles, le Point de contact du BIDDH recueillera des informations aux fins de l’élaboration de politiques mieux ciblées.

Police (…)

Mesures recommandées aux institutions et aux structures de l’OSCE : (…)

34. Le Point de contact du BIDDH et l’Unité pour les questions stratégiques de police élaboreront, dans le cadre de leurs mandats respectifs, un recueil des « meilleures pra- tiques » de la police dans l’espace de l’OSCE en ce qui concerne le maintien de l’ordre et les communautés roms et sintis.

35. Le HCMN, le Point de contact du BIDDH et l’Unité pour les questions stratégiques de police prêteront leur concours aux Etats participants pour l’élaboration de codes de conduite visant à empêcher le profilage racial et à améliorer les relations interethni- ques.

(…)

Médias (…)

Mesures recommandées aux institutions et aux structures de l’OSCE : (…)

41. Le Point de contact du BIDDH et le Représentant pour la liberté des médias organi- seront des tables rondes avec des journalistes sur l’image des communautés roms et sin- tis dans la société.

(…)

IV. Traitement des problèmes socio-économiques (…)

Conditions de logement et de vie (…)

Mesures recommandées aux institutions et aux structures de l’OSCE :

Les engagements de la dimension humaine de l’OSCE 47 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

47. Le Point de contact du BIDDH et le Bureau du Coordonnateur sont encouragés à jouer un rôle accru en facilitant la communication d’informations sur les ressources mises à disposition par des donateurs étrangers pour des projets déterminés, en particu- lier ceux émanant de groupes roms et sintis, qui ont trait au développement socio‑éco- nomique des communautés roms et sintis, ainsi que l’accès à ces ressources.

Chômage et problèmes économiques (…)

Mesures recommandées aux Etats participants : (…)

54. A la demande des Etats participants, le Point de contact du BIDDH et le Bureau du Coordonnateur soutiendront le développement de l’employabilité et de l’esprit d’en- treprise des Roms et des Sintis, en mettant sur pied des programmes de formation et de recyclage dans les Etats participants. Les pratiques ayant donné de bons résultats, notamment en ce qui concerne le développement de l’esprit d’entreprise et les petites et moyennes entreprises (PME) (par exemple, le programme de séminaires pour jeunes entrepreneurs) pourraient être adaptées aux besoins des Roms et des Sintis. (…)

(…)

56. Le Point de contact du BIDDH et le Bureau du Coordonnateur mettront à profit les études effectuées par le PNUD et d’autres organisations pour évaluer les besoins des Roms et des Sintis en vue de promouvoir des politiques qui tiennent compte de l’éten- due et de la nature de leurs besoins particuliers dans chaque Etat participant.

57. En coordination avec les organisations internationales compétentes (en particulier, le PNUD et la Banque mondiale), le Point de contact du BIDDH et le Bureau du Coor- donnateur étudieront des moyens d’améliorer l’accès des Roms et des Sintis aux pro- grammes normaux de formation. Des débats dans le cadre d’ateliers ou de tables rondes adaptés aux besoins des Roms et des Sintis pourront être organisés en vue d’informer et d’éduquer les membres de ces communautés en ce qui concerne les droits économiques et sociaux des individus et des entrepreneurs.

Soins médicaux (…)

Mesures recommandées aux Etats participants : (…)

65. Le Point de contact du BIDDH et, s’il y a lieu, d’autres institutions et structures de l’OSCE, y compris ses opérations de terrain, aideront les Etats participants à lancer des initiatives pédagogiques pour aider les Roms et les Sintis à tirer pleinement parti des

48 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Partenaires de la mise en œuvre

services médicaux ordinaires. Ils collecteront, produiront et diffuseront notamment des informations pertinentes sur les bonnes pratiques.

66. Le Point de contact du BIDDH veillera avec une attention particulière à ce que les Roms et les Sintis aient accès aux programmes de prévention et/ou de traitement de l’abus des drogues et de la toxicomanie, ainsi que du SIDA et des maladies connexes.

(…)

VI. Accroissement de la participation à la vie publique et politique (…)

Mesures recommandées aux institutions et aux structures de l’OSCE : ( …)

100. Le Point de contact du BIDDH devrait aider à organiser des formations dispensées par et pour des ONG roms, notamment des organisations de médias, à l’intention des communautés roms sur la question des processus et de la participation démocratiques.

(…)

105. Le Point de contact du BDDH et, s’il y a lieu, d’autres institutions et structures de l’OSCE, y compris ses opérations de terrain, mettront au point des programmes pour encourager les représentants des Roms et des Sintis à se porter candidats à des fonctions au sein d’organes élus ou identifieront des solutions créatives qui permettraient d’assu- rer leur participation aux processus décisionnels nationaux et locaux.

(…)

VII. Les Roms et les Sintis dans des situations de crise et d’après crise

(…)

Mesures recommandées aux Etats participants :

(…)

114. Conformément à son mandat, le Point de contact du BIDDH est invité à réagir effi- cacement aux situations de crise, notamment en coopérant avec les gouvernements, les organes intergouvernementaux et les organisations internationales compétents, en par- ticulier le HCR, afin d’assurer la protection des communautés roms en situation de ris- que.

115. Le Point de contact du BIDDH s’attachera à sensibiliser davantage les agents publics, les journalistes et d’autres personnes à la situation des Roms et des Sintis dans les zones de crise ou de conflit.

(…)

Les engagements de la dimension humaine de l’OSCE 49 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

VIII. Renforcement de la coopération et de la coordination avec d’autres organi- sations et ONG internationales

(…)

118. Le Point de contact du BIDDH continuera à participer activement au Groupe de contact informel des organisations intergouvernementales sur les questions concernant les Roms.

(…)

121. Le Point de contact du BIDDH s’attachera à consolider le « Groupe de contact international des Roms »** et continuera à contribuer à l’initiative du Conseil de l’Eu- rope visant à créer un Forum européen pour les Roms et les voyageurs.

122. Le Point de contact du BIDDH fournira des informations et des services de coordi- nation aux institutions nationales et internationales compétentes, et il facilitera le dia- logue entre ces dernières et avec les ONG roms.

123. Le Point de contact du BIDDH s’emploiera à renforcer ses relations avec les orga- nisations roms et sintis et les aidera à coordonner leurs efforts et leurs ressources, tant dans chacun des Etats qu’au‑delà des frontières, et à tirer pleinement parti des possi- bilités qu’offrent les politiques nationales et internationales en vigueur concernant les Roms et les Sintis.

124. Le Point de contact du BIDDH tirera parti de l’expérience et de l’apport des projets de suivi existants élaborés par d’autres organisations internationales.

IX. Point de contact du BIDDH pour les questions concernant les Roms et les Sintis 125. En cas de besoin, le Point de contact du BIDDH facilitera l’échange d’informations entre les Etats participants de l’OSCE qui ont élaboré des politiques nationales concer- nant les Roms et les Sintis ou qui cherchent à les améliorer.

126. Sur demande, le Point de contact du BIDDH conseillera les Etats participants sur les politiques à adopter à l’avenir en ce qui concerne les Roms et les Sintis et favorisera le débat entre les gouvernements et les ONG roms.

127. Le Point de contact du BIDDH apportera son soutien au renforcement des capaci- tés des ONG roms et sintis.

128. Le Point de contact créera une base de données des meilleures pratiques dans les Etats participants de l’OSCE.  Le Groupe de contact informel des organisations intergouvernementales sur les questions concernant les Roms est composé de représentants de l’OSCE/BIDDH, du Conseil de l’Europe, de la Commission européenne et de l’Union européenne. ** Le Groupe de contact international des Roms a été créé en octobre 2000 à l’initiative du Point de contact du BIDDH pour les questions concernant les Roms et les Sintis. Le Groupe de contact comprend des représentants de l’Union internationale des Roms, du Congrès national des Roms, des représentants élus des Roms, des experts roms et le Point de contact du BIDDH.

50 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Partenaires de la mise en œuvre

129. Le Point de contact du BIDDH devrait jouer un rôle actif dans l’analyse des mesu- res prises par les Etats participants, ainsi que lors de situations particulières et d’inci- dents concernant les Roms et les Sintis. A cette fin, le Point de contact établira et entre- tiendra des contacts directs avec les Etats participants et leur offrira des conseils et des avis.

130. Les gouvernements concernés coopéreront avec le Point de contact du BIDDH à l’identification de solutions efficaces aux situations de crise.

131. Le Point de contact du BIDDH fournira aux communautés roms et sintis davantage d’informations sur les ressources et les activités de l’OSCE.

132. En coopération avec les institutions et les structures compétentes de l’OSCE, le BIDDH prendra des mesures appropriées pour s’attaquer aux causes profondes de la traite des êtres humains, en particulier des enfants, et sensibilisera davantage les com- munautés roms et sintis à ses conséquences.

X. Mise en oeuvre : examen et évaluation

(…)

138. Le Point de contact du BIDDH diffusera des informations sur ce Plan auprès des communautés et des organisations roms et sintis, ainsi qu’auprès d’autres organisations internationales.

(…)

IV. Tâches-clés supplémentaires relatives à la tolérance et la non-discrimination, y compris les questions Rom et Sinti Budapest 1994 (Décisions : VIII. La dimension humaine) 25. Les Etats participants condamnent les manifestations d’intolérance, en particulier de nationalisme agressif, de racisme, de chauvinisme, de xénophobie et d’antisémitisme, et ils continueront à promouvoir les mesures efficaces en vue d’éradiquer ces fléaux de la société. Ils demandent au BIDDH de continuer à porter une attention particulière à ces phénomènes en rassemblant des informations sur leurs diverses manifestations dans les Etats participants. (…)

Bucarest 2001 (Décisions : Décision No. 5) Le Conseil ministériel,

(…)

Invite les institutions de l’OSCE, et en particulier le Bureau des institutions démocra- tiques et des droits de l’homme, le Haut Commissaire pour les minorités nationales et le Représentant de l’OSCE pour la liberté des médias à porter une attention accrue aux manifestations de nationalisme agressif, de racisme, de chauvinisme, de xénophobie,

Les engagements de la dimension humaine de l’OSCE 51 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

d’antisémitisme et d’extrémisme violent, à lutter contre l’intolérance et la discrimina- tion fondée sur l’origine raciale ou ethnique, ou des opinions religieuses, politiques ou autres et à encourager le respect de l’état de droit, des valeurs démocratiques, des droits de l’homme et des libertés fondamentales, y compris la liberté d’expression, de pensée, de conscience, de religion ou de conviction.

Maastricht 2003 (Décisions : Annexe à la Décision No. 3/03 : Plan d’action visant à améliorer la situation des Roms et des Sintis dans l’espace de l’OSCE) III. Lutte contre le racisme et la discrimination (…)

Législation et mesures visant à en assurer le respect ( …)

Mesures recommandées aux institutions et aux structures de l’OSCE : 20. Le BIDDH et, s’il y a lieu, d’autres institutions et structures de l’OSCE, y compris les opérations de terrain de l’OSCE, prêteront leur concours aux Etats participants, à leur demande, pour l’élaboration d’une législation antidiscrimination, et pour l’établis- sement d’organes chargés de lutter contre la discrimination.

(…)

22. Sur demande, le BIDDH fournira des conseils aux Etats participants sur la manière dont leurs mécanismes existants, comme les bureaux du médiateur, les commissions chargées de lutter contre la discrimination, la police, les commissions disciplinaires et d’autres organes compétents peuvent atténuer les tensions entre les Roms et les Sintis et les autres communautés.

(…)

Police (…)

Mesures recommandées aux institutions et aux structures de l’OSCE : 33. L’Unité pour les questions stratégiques de police au sein du Secrétariat et le BIDDH prêteront leur concours aux Etats participants pour l’élaboration de programmes et de mesures de renforcement de la confiance — comme la police de proximité — afin d’améliorer les relations entre les Roms et les Sintis et la police, en particulier au niveau local.

(…)

Médias (…)

52 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Partenaires de la mise en œuvre

Mesures recommandées aux institutions et aux structures de l’OSCE : 39. En coopération avec le BIDDH et avec les organisations internationales compéten- tes, le Représentant pour la liberté des médias devrait examiner comment l’OSCE pour- rait contribuer à l’établissement d’une radio européenne des Roms qui émettrait dans toute l’Europe. Le BIDDH et le Représentant pour la liberté des médias devraient orga- niser des débats publics, des campagnes antidiscrimination et des programmes de for- mation communs avec les médias et à leur intention.

(…)

IV. Traitement des problèmes socio-économiques (…)

Soins médicaux (…)

Mesures recommandées aux institutions et aux structures de l’OSCE : 64. En coopération avec d’autres organisations internationales et des ONG, le BIDDH mettra à profit les données de recherche existantes pour déterminer les facteurs socio‑économiques, politiques et culturels qui influent sur l’état de santé de popula- tions roms et sintis particulières, et donnera des avis aux Etats participants sur les pro- grammes de santé publique qui répondraient aux besoins recensés.

(…)

VI. Accroissement de la participation à la vie publique et politique (…)

Mesures recommandées aux institutions et aux structures de l’OSCE : 99. Le BDDH et, s’il y a lieu, d’autres institutions et structures de l’OSCE, notamment ses opérations de terrain, élaboreront des programmes visant à faciliter l’inscription nécessaire pour participer pleinement à la vie politique.

(…)

101. Le BIDDH et, s’il y a lieu, d’autres institutions et structures de l’OSCE, y compris ses opérations de terrain, élaboreront et mettront en oeuvre des programmes d’éduca- tion et d’inscription des électeurs.

102. Le BIDDH favorisera les échanges d’informations et de meilleures pratiques entre les Etats participants et d’autres organisations internationales.

103. Le BIDDH poursuivra et renforcera la pratique consistant à observer la partici- pation des Roms aux scrutins et aux processus électoraux, et continuera à inclure

Les engagements de la dimension humaine de l’OSCE 53 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

des experts roms et sintis dans ses missions d’observation électorale dans l’espace de l’OSCE.

(…)

106. Le BIDDH accordera une attention particulière aux activités visant à améliorer l’accès des femmes roms à tous les domaines de la vie publique et politique.

VII. Les Roms et les Sintis dans des situations de crise et d’après crise

(…)

Mesures recommandées aux institutions et aux structures de l’OSCE : 113. Le BIDDH mettra à profit son rôle spécifique dans le domaine de la prévention des conflits et de l’identification des régions potentielles de crise qui requièrent une inter- vention précoce.

(…)

116. Le BIDDH s’emploiera activement à analyser les mesures prises par les Etats parti- cipants à l’égard des Roms et des Sintis et offrira ses conseils en vue de mieux s’attaquer à ces éléments de tension dans des situations locales particulières qui peuvent dégéné- rer, si rien n’est fait pour l’empêcher, en situations de conflit ouvert.

Maastricht 2003 (Décisions : Décision No. 4/03 sur la tolérance et la non-discrimina- tion) Le Conseil ministériel,

(…)

6. Encourage tous les Etats participants à recueillir et à conserver des informations et des statistiques fiables sur les crimes inspirés par la haine, notamment sur les mani- festations violentes de racisme, de xénophobie, de discrimination et d’antisémitisme, comme évoqué et recommandé lors des conférences susmentionnées. Reconnaissant l’importance de la législation visant à lutter contre les crimes inspirés par la haine, les Etats participants informeront le BIDDH de la législation existante sur les crimes découlant de l’intolérance et de la discrimination et, le cas échéant, solliciteront l’assis- tance du BIDDH pour la rédaction et la révision d’une telle législation ;

7. Charge le BIDDH, en coopération, notamment, avec le Comité des Nations Unies sur l’élimination de la discrimination raciale (CERD), la Commission européenne contre le racisme et l’intolérance (ECRI) et l’Observatoire européen des phénomènes racistes et xénophobes (EUMC), ainsi que les ONG compétentes, de recueillir les informations et les statistiques rassemblées par les Etats participants et de faire rapport régulièrement sur ces questions, notamment dans le cadre de la Réunion sur la mise en oeuvre des engagements concernant la dimension humaine, afin de déterminer les priorités futu-

54 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Partenaires de la mise en œuvre

res. Le BIDDH encouragera, notamment, les meilleures pratiques et diffusera les leçons acquises dans la lutte contre l’intolérance et la discrimination ;

(…)

Sofia 2004 (Décisions : Annexe à la Décision No. 12/04 sur la tolérance et la non-discri- mination ; Décision du Conseil permanent No. 607 : Lutte contre l’antisémitisme) Le Conseil permanent,

(…)

Décide ce qui suit :

(…)

2. De charger le BIDDH de : • Suivre de près, en pleine coopération avec d’autres institutions de l’OSCE ainsi qu’avec le Comité pour l’élimination de la discrimination raciale de l’ONU (CERD), la Com- mission européenne contre le racisme et l’intolérance (ECRI), l’Observatoire euro- péen des phénomènes racistes et xénophobes (EUMC) ainsi que d’autres institutions internationales et ONG pertinentes, les incidents antisémites survenus dans l’espace de l’OSCE au moyen de toutes les informations fiables dont ils disposent ; • Lui faire rapport sur ses conclusions ainsi qu’à la Réunion sur la mise en œuvre des engagements concernant la dimension humaine et de rendre ces conclusions publi- ques. Ces rapports devraient également être pris en compte lors de la fixation des prio- rités de travail de l’OSCE dans le domaine de l’intolérance ; • Recueillir et diffuser systématiquement dans tout l’espace de l’OSCE des informa- tions sur les meilleures pratiques visant à prévenir l’antisémitisme et y faire face, et sur demande, offrir des conseils aux Etats participants dans leurs efforts de lutte contre l’antisémitisme ; (…)

Sofia 2004 (Décisions : Annexe à la Décision No. 12/04 sur la tolérance et la non-discri- mination ; Décision du Conseil permanent No. 621 : Tolérance et lutte contre le racisme, la xénophobie et la discrimination) Le Conseil permanent,

(…)

Soucieux de renforcer nos efforts communs visant à lutter contre les manifestations d’intolérance dans la région de l’OSCE,

Décide ce qui suit :

(…)

Les engagements de la dimension humaine de l’OSCE 55 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

2. De charger le BIDDH de :

• Suivre de près, en pleine coopération avec d’autres institutions de l’OSCE ainsi qu’avec le Comité pour l’élimination de la discrimination raciale de l’ONU (CERD), le Haut Commissariat des Nations Unies aux droits de l’homme (HCDH), la Commission européenne contre le racisme et l’intolérance (ECRI), l’Observatoire européen des phénomènes racistes et xénophobes (EUMC) ainsi que d’autres institutions interna- tionales et ONG pertinentes, les incidents motivés par le racisme, la xénophobie ou l’intolérance qui y est associée, notamment envers les musulmans, et l’antisémitisme dans l’espace de l’OSCE au moyen de toutes les informations fiables dont ils dispo- sent ;

• Lui faire rapport sur ses conclusions ainsi qu’à la Réunion sur la mise en œuvre des engagements concernant la dimension humaine et rendre ces conclusions publiques. Ces rapports devraient également être pris en compte lors de la fixation des priorités de travail de l’OSCE dans le domaine de l’intolérance ; • Recueillir et diffuser systématiquement dans tout l’espace de l’OSCE les informations sur les meilleures pratiques visant à prévenir le racisme, la xénophobie et la discrimi- nation et y faire face, et sur demande, offrir des conseils aux Etats participants dans leurs efforts de lutte contre le racisme, la xénophobie et la discrimination ; • Appuyer les capacités de la société civile et le développement de partenariats pour combattre le racisme, la xénophobie, la discrimination ou l’intolérance qui y est asso- ciée, notamment envers les musulmans, et l’antisémitisme. (…)

V. Tâches-clés supplémentaires relatives à la parité homme-femme Sofia 2004 (Décisions : Annexe à la Décision No. 14/04 ; Plan d’action de l’OSCE 2004 pour la promotion de l’égalité entre les sexes) V. Appui aux Etats participants de l’OSCE pour la mise en œuvre des engagements pertinents visant à promouvoir l’égalité entre les femmes et les hommes (…)

44. Priorités

a) Elaborer des projets dans les Etats participants de l’OSCE n’accueillant pas de mis- sion

• Dans les pays où il n’y a pas de mission, le BIDDH identifiera des projets visant à appuyer les mesures dans les domaines de la prévention de la violence à l’encontre des femmes, de la promotion des femmes dans les sphères publique, politique et économi- que, et de l’appui à l’intégration d’une démarche soucieuse de l’égalité entre les sexes.

b) Garantir un cadre juridique et politique non discriminatoire

56 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Partenaires de la mise en œuvre

• Le BIDDH, en coopération avec d’autres organisations internationales et organes et institutions nationaux concernés, aidera les Etats participants de l’OSCE à se confor- mer aux instruments internationaux pour promouvoir la parité des sexes et les droits des femmes, et à revoir la législation afin d’apporter les garanties juridiques appro- priées pour la promotion de la parité des sexes, conformément aux engagements pris par l’OSCE et à d’autres engagements ;

• Le BIDDH contribuera à l’élaboration et à la mise en œuvre de programmes et d’ac- tivités spécifiques visant à promouvoir les droits de la femme, à renforcer le rôle des femmes à tous les niveaux de la prise de décisions et à promouvoir l’égalité entre les femmes et les hommes dans tout l’espace de l’OSCE, notamment par l’éducation à une sensibilisation aux différences entre les sexes ;

• Le BIDDH contribuera à la mise en œuvre et à l’évaluation de stratégies et de plans d’action nationaux sur les mesures visant à promouvoir l’égalité entre les sexes et à intégrer une perspective tenant compte de différences entre les sexes ;

(…)

d) Assurer l’égalité des chances en vue de la participation des femmes à la vie politique et publique

• Le BIDDH aidera les Etats participants à mettre en œuvre des mesures efficaces per- mettant d’assurer la pleine participation des femmes aux processus démocratiques et aidera à définir des pratiques optimales en vue de leur mise en œuvre ;

• Le BIDDH et les opérations de terrain de l’OSCE aideront, le cas échéant, à mettre en place des capacités et des compétences locales sur les questions relatives à la parité des sexes, ainsi que des réseaux unissant les dirigeants de communautés et les responsa- bles politiques ;

• Le BIDDH continuera à aider les Etats participants à promouvoir la participation poli- tique des femmes. Il continuera, dans le cadre de sa mission d’observation des élec- tions, à suivre la participation des femmes dans les processus électoraux et à en faire rapport. De plus, si possible, le BIDDH commandera et publiera des rapports qui ana- lysent spécifiquement la situation des femmes dans les processus électoraux ;

(…)

g) Elaborer de mécanismes nationaux pour l’avancement des femmes

• Le BIDDH continuera à apporter son savoir‑faire et son appui à l’instauration d’ins- titutions démocratiques visant à faire progresser l’égalité entre les sexes, par exemple par des bureaux de médiateur aux niveaux local et national, le cas échéant ;

• Le BIDDH facilitera le dialogue et la coopération entre la société civile, les médias et le gouvernement dans la promotion d’une approche intégrée de l’égalité entre les sexes.

Les engagements de la dimension humaine de l’OSCE 57 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

VI. Tâches-clés supplémentaires relatives à la lutte contre la traite des êtres humains Vienne 2000 (Décisions : Décision sur le renforcement des efforts de l’OSCE pour com- battre la traite des êtres humains) Le Conseil ministériel,

(…)

7. Demande aux institutions de l’OSCE, en particulier au Bureau des institutions démo- cratiques et des droits de l’homme (BIDDH), et aux opérations sur le terrain d’élaborer et de mettre en œuvre des programmes de lutte contre la traite et de promouvoir des efforts coordonnés dans les domaines de la prévention, des poursuites et de la protec- tion, en coopération avec les organisations non gouvernementales de même qu’avec les organisations internationales et autres institutions compétentes ;

(…)

13. Prie le Secrétariat de l’OSCE, agissant en coopération avec le BIDDH, de faire une plus grande part à la formation en matière de lutte contre la traite dans ses program- mes d’initiation à l’intention du personnel hors siège de l’OSCE, afin que ce personnel soit mieux à même de suivre le problème de la traite, d’en rendre compte et d’y répon- dre dans le cadre des activités normales de l’OSCE ; et de sensibiliser les institutions et le personnel de l’OSCE aux problèmes de la traite ; ces programmes de formation devraient être également mis à la disposition des Etats participants et d’autres organisa- tions internationales ;

(…)

Maastricht 2003 (Décisions : Annexe à la Décision No. 2/03 sur la lutte contre la traite des êtres humains ; Plan d’action de l’OSCE pour lutter contre la traite des êtres humains) III. Enquêtes, détection, répression et poursuites (…)

9. Examen et réforme de la législation

9.1 Le BIDDH et, s’il y a lieu, les opérations de terrain, continueront à promouvoir et à appuyer les efforts visant à examiner et à réformer la législation conformément aux nor- mes internationales.

(…)

10.4 Dans le cadre de l’assistance qu’il apporte à l’élaboration de mécanismes nationaux d’orientation, le BIDDH continuera à promouvoir et à encourager la coopération entre les services de détection et de répression et la société civile.

(…)

58 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Partenaires de la mise en œuvre

12. Formation

12.1 Le BIDDH et l’Unité de l’OSCE pour les questions stratégiques de police continue- ront à élaborer, à l’intention des services de détection et de répression, des matériels de formation sur la traite des êtres humains et les enquêtes sur les crimes sexuels, à exa- miner avec l’International Law Enforcement Academy (ILEA), à Budapest, la possibi- lité d’incorporer cette formation dans les programmes de l’ILEA, à sélectionner des for- mateurs pour assurer la formation en matière de détection et de répression, et à contri- buer au financement de séances de formation à l’intention des services de détection et de répression dans les Etats participants de l’OSCE.

(…)

IV. Prévention de la traite des êtres humains (…)

8. Activités de sensibilisation

8.1 Le [BIDDH] et, s’il y a lieu, les opérations de terrain continueront à contribuer aux efforts de recherche, ainsi qu’à promouvoir et à mener des initiatives de sensibilisation en coopération avec les partenaires concernés dans tout l’espace de l’OSCE.

8.2 (…) Le [BIDDH] renforcera les activités de formation concernant la responsabilité des médias à traiter avec certains égards de la question de la traite et à ne pas insister sur les stéréotypes négatifs. La formation mettra l’accent sur la complexité du phéno- mène de la traite et sur la nécessité d’y apporter une réponse globale.

(…)

V. Protection et assistance (…)

11. Mécanisme national d’orientation

11.1 Renforcer les activités de l’OSCE, notamment du BIDDH, en aidant les Etats parti- cipants, s’ils le demandent, à mettre en place le mécanisme national d’orientation.

11.2 Prier l’Unité de l’OSCE pour les questions stratégiques de police, en même temps que le BIDDH, d’élaborer plus avant des directives et un manuel sur l’identification des victimes présumées de la traite des êtres humains et sur les preuves de la traite afin d’aider, s’il y a lieu, les Etats participants.

(…)

14. Formation

(…)

Les engagements de la dimension humaine de l’OSCE 59 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

14.2 Charger le BIDDH de recueillir et de diffuser des informations sur les mesures, les programmes de formation et les documents déjà existants dans les Etats participants de l’OSCE.

15. Mesures législatives

15.1 En coordination avec l’Office des Nations Unies contre la drogue et le crime, le Conseil de l’Europe et les autres acteurs concernés, le BIDDH continuera à aider les Etats participants, sur leur demande, à mettre leur législation nationale en conformité avec les normes et règles internationales, en encourageant en particulier une attitude humaine et compréhensive à l’égard des victimes de la traite.

VI. Mécanismes de suivi et de coordination (…)

7. Charge le BIDDH d’apporter l’assistance technique nécessaire aux Etats participants, le cas échéant, pour l’élaboration de plans d’action nationaux de lutte contre la traite, notamment de mesures législatives et d’autres mesures d’assistance visant à prévenir et combattre la traite des êtres humains et à en protéger les victimes de manière efficace ;

(…)

9. Charge le BIDDH d’élaborer plus avant sa fonction de coordonnateur pour les échan- ges d’informations, les contacts, les documents et les bonnes pratiques, et de renforcer ses activités de projet.

VII. A Tâches-clés supplémentaires relatives à la lutte contre le terrorisme Bucarest 2001 (Annexe à la Décision 1 sur la lutte contre le terrorisme ; Plan d’action de Bucarest pour lutter contre le terrorisme) II. Obligations juridiques et engagements politiques internationaux (…)

6. Bureau des institutions démocratiques et des droits de l’homme (BIDDH) : Il offrira, sur demande officielle d’Etats participants intéressés et, le cas échéant, une assistance ou des conseils techniques sur l’élaboration de lois nécessaires à la ratification d’instru- ments internationaux, en étroite coopération avec d’autres organisations, dont l’Office des Nations Unies pour le contrôle des drogues et la prévention du crime (OCDPC).

(…)

III. Action préventive contre le terrorisme dans l’espace de l’OSCE (…)

10. Mise en place d’institutions, renforcement de l’état de droit et des pouvoirs publics : BIDDH : Il continuera à s’efforcer de promouvoir, à la demande des Etats, la mise en place d’institutions démocratiques, en apportant son concours, en aidant notamment

60 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Partenaires de la mise en œuvre

à renforcer les capacités administratives, les administrations locales et centrale et les structures parlementaires, la magistrature, les institutions de médiateur et la société civile. Il facilitera à cet égard des échanges de meilleures pratiques et d’expériences entre Etats participants. Il continuera à élaborer des projets pour consolider les institu- tions démocratiques, la société civile et la bonne gouvernance.

(…)

Renforcement de la législation anti‑terroriste nationale (…)

18. BIDDH : Il proposera, à la demande des Etats participants intéressés et selon que de besoin, une assistance technique ou des conseils concernant l’application des conven- tions et protocoles internationaux relatifs au terrorisme et la conformité de la législation anti‑terroriste avec les normes internationales, conformément aux décisions du Conseil permanent, et cherchera à coopérer à cette fin avec d’autres organismes, et en particu- lier l’OCDPC. Il envisagera de faciliter les contacts entre experts nationaux pour encou- rager l’échange d’informations et pour promouvoir les meilleures pratiques intéressant la législation anti‑terroristes.

(…)

Appui à l’application de la loi et lutte contre la criminalité organisée (…)

22. BIDDH : Il conseillera en permanence les Etats participants, à leur demande, à pro- pos du renforcement des cadres juridiques nationaux et des institutions qui font res- pecter l’état de droit, comme les services chargés de l’application de la loi, la magistra- ture assise et debout, le barreau et les avocats de la défense. Il intensifiera ses efforts pour combattre la traite des êtres humains et pour secourir les victimes de la traite. Il appuiera, le cas échéant, la réforme pénitentiaire et les améliorations de la procédure pénale.

B. Haut-commissaire pour les minorités nationales Helsinki 1992 (Décisions : II. Le Haut commissaire de la CSCE pour les minorités natio- nales) (1) Les Etats participants décident de créer un poste de Haut Commissaire pour les minorités nationales.

Mandat (2) Le Haut Commissaire agira sous l’égide du CHF et sera par conséquent un instru- ment de prévention des conflits au stade le plus précoce possible.

(3) Le Haut Commissaire déclenchera le plus tôt possible une «alerte rapide» et, si besoin est, engagera une «action rapide» lorsque des tensions liées à des problèmes de minori-

Les engagements de la dimension humaine de l’OSCE 61 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

tés nationales n’auront pas encore dépassé le stade de l’alerte rapide mais seront, selon le Haut Commissaire, susceptibles de dégénérer en conflit dans la zone de la CSCE, mena- çant la paix, la stabilité ou les relations entre les Etats participants et requérant l’atten- tion du Conseil des ministres de la CSCE ou du CHF et une action de leur part.

(4) Dans le cadre de ce mandat fondé sur les principes et engagements de la CSCE, le Haut Commissaire dont les activités seront confidentielles agira en toute indépendance à l’égard de toutes les parties directement en cause dans les tensions.

(5a) Le Haut Commissaire n’examinera de problèmes de minorités nationales se posant dans le pays dont il est ressortissant ou résident, ou de problèmes relatifs à une minorité nationale à laquelle il appartient, que si toutes les parties directement en cause l’accep- tent, y compris l’Etat concerné.

(5b) Le Haut Commissaire n’examinera pas de problèmes de minorités nationales dans des situations comportant des actes organisés de terrorisme.

(5c) Le Haut Commissaire ne connaîtra pas non plus des cas individuels dans lesquels des personnes appartenant à une minorité nationale sont victimes de violations des engagements de la CSCE.

(6) Dans son examen d’une situation, le Haut Commissaire tiendra pleinement compte des moyens démocratiques et des instruments internationaux applicables à cette situa- tion, ainsi que de leur utilisation par les parties en cause.

(7) Lorsqu’un problème particulier de minorités nationales aura été porté à l’attention du CHF, le Haut Commissaire ne sera amené à intervenir qu’à la demande du CHF et selon un mandat spécifique émanant du CHF.

Profil, nomination, appui (8) Le Haut Commissaire sera une personnalité internationale éminente ayant une lon- gue expérience dans le domaine considéré et dont on peut attendre qu’elle fasse preuve d’une grande impartialité dans l’exercice de ses fonctions.

(9) Le Haut Commissaire sera nommé par le Conseil des ministres de la CSCE, par consensus, sur recommandation du CHF et pour une période de trois ans renouvela- ble une seule fois.

(10) Le Haut Commissaire pourra bénéficier des moyens du BIDDH à Varsovie, et en particulier des informations disponibles au BIDDH sur tous les aspects des problèmes de minorités nationales.

Alerte rapide (11) Le Haut Commissaire :

(11a) recueillera et recevra des sources indiquées ci-dessous des informations sur les problèmes de minorités nationales (voir les paragraphes (23) à (25) du Supplément) ;

62 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Partenaires de la mise en œuvre

(11b) évaluera le plus tôt possible le rôle des parties directement en cause, la nature des tensions et des événements récents qui s’y rapportent et, si possible, les conséquences éventuelles pour la paix et la stabilité dans la zone de la CSCE ;

(11c) sera à cette fin en mesure de se rendre, conformément aux dispositions du paragra- phe (17) et des paragraphes (27) à (30) du Supplément, en visite sur le territoire de tout Etat participant et de communiquer en personne, sous réserve des dispositions du pa- ragraphe (25), avec les parties directement en cause afin d’obtenir des informations de première main sur la situation des minorités nationales.

(12) Le Haut Commissaire pourra, au cours d’une visite sur le territoire d’un Etat parti- cipant, tout en obtenant des informations de première main de toutes les parties direc- tement en cause, avoir des entretiens avec les parties et, s’il y a lieu, promouvoir le dialo- gue, la confiance et la coopération entre celles-ci.

Déclenchement d’une alerte rapide

(13) Si, après avoir échangé des communications et eu des contacts avec les parties, le Haut Commissaire en conclut qu’il existe un risque prima facie de conflit potentiel (comme cela est indiqué au paragraphe (3)), il pourra déclencher une alerte rapide dont le CHF sera informé sans délai par le Président en exercice.

(14) Le Président en exercice fera inscrire cette alerte rapide à l’ordre du jour de la réu- nion suivante du CHF. Si un Etat estime que l’alerte rapide appelle la tenue rapide de consultations, l’Etat en question peut engager la procédure décrite à l’Annexe 2 au Résumé des conclusions de la Réunion du Conseil de Berlin («Mécanisme d’urgence»).

(15) Le Haut Commissaire exposera au CHF les raisons du déclenchement de l’alerte rapide.

Action rapide (16) Le Haut Commissaire pourra recommander qu’on l’autorise à prendre de nouveaux contacts et à procéder à des consultations plus poussées avec les parties dans la perspec- tive d’éventuelles solutions conformes à un mandat qui devra faire l’objet d’une décision du CHF. Le CHF pourra décider en conséquence.

Responsabilité (17) Le Haut Commissaire consultera le Président en exercice avant de se rendre sur le territoire d’un Etat participant pour étudier un cas de tension intéressant des minori- tés nationales. Le Président en exercice consultera confidentiellement l’Etat (les Etats) participant(s) concerné(s) et pourra mener des consultations plus larges.

(18) Après avoir effectué une visite sur le territoire d’un Etat participant, le Haut Com- missaire remettra au Président en exercice des rapports strictement confidentiels sur ses conclusions et sur les progrès de son action à propos d’une question particulière.

Les engagements de la dimension humaine de l’OSCE 63 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

(19) Au terme de son action au sujet d’un problème particulier, le Haut Commissaire présentera au Président en exercice un rapport contenant ses constatations, les résultats de son action et ses conclusions. Dans le délai d’un mois, le Président en exercice enga- gera des consultations confidentielles sur ces constatations, résultats et conclusions avec le(s) Etat(s) concerné(s) et pourra élargir ses consultations. Le rapport, avec d’éven- tuelles observations, sera ensuite transmis au CHF.

(20) S’il conclut que la situation s’aggrave au point de dégénérer en conflit, ou s’il estime que ses possibilités d’action sont épuisées, le Haut Commissaire en informera le CHF par l’intermédiaire du Président en exercice.

(21) Dans le cas où le CHF aura été saisi d’un problème particulier, le Haut Commis- saire donnera des informations et, sur demande, des avis au CHF ou à toute autre ins- titution ou organisation que le CHF pourra inviter, conformément aux dispositions du chapitre III du présent document, à prendre des mesures à propos des tensions ou du conflit.

(22) Le Haut Commissaire, si le CHF le lui demande et compte dûment tenu de la règle de confidentialité énoncée dans son mandat, présentera des informations au sujet de ses activités aux réunions de la CSCE sur la mise en œuvre des engagements concernant la dimension humaine.

Supplément Sources d’information au sujet des problèmes de minorités nationales (23) Le Haut Commissaire pourra :

(23a) recueillir et recevoir de toutes sources, y compris des médias et d’organisations non gouvernementales, sauf les exceptions visées au paragraphe (25), des informations concernant la situation des minorités nationales et le rôle des parties ;

(23b) recevoir des parties directement en cause des rapports particuliers sur des faits récents liés à des problèmes de minorités nationales. Il pourra s’agir notamment de rap- ports sur des cas de violation des engagements de la CSCE en ce qui concerne les mino- rités nationales ainsi que sur d’autres violations commises dans ce contexte.

(24) Ces rapports spéciaux au Haut Commissaire devraient répondre aux critères sui- vants :

• être formulés par écrit, être adressés au Haut Commissaire en tant que tel et compren- dre les nom, prénom et adresse des signataires ;

• contenir un compte rendu objectif des faits qui touchent la situation de personnes appartenant à des minorités nationales et le rôle des parties, et qui sont survenus dans un passé proche, en principe au cours des douze mois précédents. Les rapports devraient contenir des informations dont on peut suffisamment établir le bien-fondé.

64 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Partenaires de la mise en œuvre

(25) Le Haut Commissaire ne communiquera pas avec des personnes ou des organisa- tions qui pratiquent ou excusent publiquement le terrorisme ou la violence, ni ne répon- dra aux communications présentées par ces personnes et organisations.

Parties directement en cause (26) Les parties directement en cause dans les tensions, qui pourront fournir des rap- ports particuliers au Haut Commissaire et avec lesquelles ce dernier cherchera à com- muniquer en personne au cours d’une visite sur le territoire d’un Etat participant, sont les suivantes :

(26a) les gouvernements des Etats participants, y compris, le cas échéant, les autorités régionales et locales des zones dans lesquelles résident des minorités nationales ;

(26b) les représentants d’associations, d’organisations non gouvernementales et de groupes religieux et autres groupes de minorités nationales directement intéressés et présents dans la zone de tension, qui sont autorisés par les personnes appartenant à ces minorités nationales à les représenter.

Conditions de déplacement du Haut Commissaire (27) Avant une visite prévue, le Haut Commissaire soumettra à l’Etat participant concerné des informations précises sur l’objet prévu de cette visite. Dans un délai de deux semaines, l’Etat (les Etats) concerné(s) consultera (consulteront) le Haut Commis- saire à propos des objectifs de la visite qui pourront comprendre la promotion du dialo- gue, de la confiance et de la coopération entre les parties. Après l’entrée du Haut Com- missaire sur son territoire, l’Etat concerné fera en sorte que le Haut Commissaire puisse se déplacer et communiquer librement sous réserve des dispositions du paragraphe (25) ci-dessus.

(28) Si l’Etat concerné n’autorise pas le Haut Commissaire à entrer sur son territoire, à s’y déplacer et à y communiquer librement, le Haut Commissaire en informera le CHF.

(29) Au cours d’une telle visite, sous réserve des dispositions du paragraphe (25), le Haut Commissaire pourra consulter les parties et obtenir confidentiellement de la part de tout individu, groupe ou organisation directement en cause des informations sur les questions dont il est saisi. Le Haut Commissaire veillera au respect de la confidentialité de ces informations.

(30) Les Etats participants ne prendront aucune mesure à l’encontre de personnes, d’or- ganisations ou d’institutions pour avoir eu des contacts avec le Haut Commissaire.

Le Haut Commissaire et l’intervention d’experts (31) Le Haut Commissaire pourra décider de demander l’assistance de trois experts au plus, dotés des compétences voulues sur des sujets précis pour lesquels de brèves recher- ches spécialisées et des avis sont nécessaires.

Les engagements de la dimension humaine de l’OSCE 65 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

(32) S’il décide de faire appel à des experts, le Haut Commissaire établira un mandat précis et un calendrier des activités des experts.

(33) Les experts ne se rendront sur le territoire d’un Etat participant qu’en même temps que le Haut Commissaire. Leur mandat fera partie intégrante du mandat du Haut Com- missaire et les mêmes conditions de déplacement leur seront appliquées.

(34) Les avis et recommandations demandés aux experts seront soumis confidentiel- lement au Haut Commissaire, qui sera responsable des activités et des rapports des experts et décidera s’il y a lieu de communiquer, et sous quelle forme, ces avis et recom- mandations aux parties concernées. Les avis et recommandations ne seront pas contrai- gnants. Si le Haut Commissaire décide de les mettre à la disposition de l’Etat (des Etats) concerné(s), celui-ci (ceux-ci) aura (auront) la possibilité de les commenter.

(35) Les experts seront choisis par le Haut Commissaire avec l’aide du BIDDH sur la liste établie au BIDDH, conformément aux dispositions du Document de la Réunion de Moscou.

(36) Les experts ne pourront être ni des ressortissants, ni des résidents de l’Etat partici- pant concerné, ni une personne désignée par cet Etat, ni un expert à l’encontre duquel l’Etat participant aura précédemment formulé des réserves. Les experts ne pourront être ni des ressortissants ni des résidents de l’Etat participant ni une des personnes dési- gnées par celui‑ci pour figurer sur la liste ; ne pourra figurer au nombre des experts plus d’un ressortissant ou résident d’un Etat participant.

Stockholm 1992 (Décisions : 3. Le Haut Commissaire pour les minorités nationales) (…) Les ministres ont exprimé leur soutien au Haut Commissaire et leur volonté de coo- pérer avec lui dans l’exécution de sa tâche complexe, mais déterminante, à savoir déce- ler et contenir le plus tôt possible les tensions liées à des problèmes de minorités natio- nales qui sont susceptibles de dégénérer en conflit dans la zone de la CSCE.

Les ministres ont encouragé le Haut Commissaire à analyser minutieusement les régions potentielles de tension, à se rendre sur le territoire de tout Etat participant et à engager des discussions sur des sujets variés à tous les niveaux avec les parties directe- ment concernées par les problèmes. Dans ce contexte, le Haut Commissaire peut abor- der les problèmes avec les parties et, s’il y a lieu, encourager le dialogue, la confiance et la coopération entre elles à tous les niveaux, pour favoriser des solutions politiques conformes aux principes et engagements de la CSCE.

Tout en respectant l’indépendance conférée au Haut Commissaire par le mandat, les ministres se sont engagés à lui fournir les informations pertinentes dont ils dispo- sent au sujet des problèmes de minorités nationales.

Rome 1993 (Décisions : III. Le Haut Commissaire pour les minorités nationales) Conscients de l’interrelation étroite qui existe entre les questions relatives aux minori- tés nationales et à la prévention des conflits, les ministres ont encouragé le Haut Com-

66 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Partenaires de la mise en œuvre

missaire pour les minorités nationales (HCMN) à poursuivre ses activités dans le cadre de son mandat. (…) Les ministres ont souligné qu’il est important que des Etats parti- cipants coopèrent pleinement avec le Haut Commissaire et contribuent au suivi et à la mise en œuvre de ses recommandations.

Bucarest 2001 (Décisions : Décision No. 5) Le Conseil ministériel,

(…)

Invite les institutions de l’OSCE, et en particulier le Bureau des institutions démocra- tiques et des droits de l’homme, le Haut Commissaire pour les minorités nationales et le Représentant de l’OSCE pour la liberté des médias à porter une attention accrue aux manifestations de nationalisme agressif, de racisme, de chauvinisme, de xénophobie, d’antisémitisme et d’extrémisme violent, à lutter contre l’intolérance et la discrimina- tion fondée sur l’origine raciale ou ethnique, ou des opinions religieuses, politiques ou autres et à encourager le respect de l’état de droit, des valeurs démocratiques, des droits de l’homme et des libertés fondamentales, y compris la liberté d’expression, de pensée, de conscience, de religion ou de conviction.

Maastricht 2003 (Décisions : Annexe à la Décision No. 3/03 : Plan d’action visant à améliorer la situation des Roms et des Sintis dans l’espace de l’OSCE) III. Lutte contre le racisme et la discrimination (…)

Législation et mesures visant à en assurer le respect (…)

Mesures recommandées aux institutions et aux structures de l’OSCE : (…)

21. Le Haut Commissaire pour les minorités nationales (HCMN) continuera, dans le cadre de son mandat, à suivre le développement de la législation antidiscrimination et, selon qu’il conviendra, fournira des conseils et une aide aux Etats participants à cet égard.

(…)

Police (…)

Mesures recommandées aux institutions et aux structures de l’OSCE : (…)

Les engagements de la dimension humaine de l’OSCE 67 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

35. Le HCMN, le Point de contact du BIDDH et l’Unité pour les questions stratégiques de police prêteront leur concours aux Etats participants pour l’élaboration de codes de conduite visant à empêcher le profilage racial et à améliorer les relations interethni- ques.

Médias (…)

Mesures recommandées aux institutions et aux structures de l’OSCE : (…)

42. Le HCMN continuera à élaborer et à diffuser des directives à l’intention des respon- sables de l’élaboration des politiques sur l’utilisation des médias publics de radiodiffu- sion dans les communautés multiculturelles, visant, notamment, à encourager le sou- tien en faveur des organismes de radiodiffusion des minorités, y compris ceux des Roms et des Sintis, et à améliorer leur accès aux médias.

(…)

V. Amélioration de l’accès à l’éducation (…)

Mesures recommandées aux institutions et structures de l’OSCE : (…)

85. Le HCMN encouragera les Etats participants à se conformer aux engagements qu’ils ont pris d’assurer à tous les membres de la société la liberté et l’égalité d’accès à l’ensei- gnement public et les encourageront à prendre des mesures pour améliorer la situation des Roms et des Sintis à cet égard.

86. Le HCMN continuera à donner des orientations sur les modèles d’enseignement, le contenu des programmes scolaires et l’enseignement de, ou dans, la langue maternelle, y compris le romani.

VI. Accroissement de la participation à la vie publique et politique (…)

Mesures recommandées aux institutions et aux structures de l’OSCE : (…)

104. Le HCMN continuera, dans le cadre de son mandat, à conseiller les Etats sur les moyens appropriés de faciliter la participation des Roms et des Sintis à tous les domai- nes de la vie publique.

(…)

68 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Partenaires de la mise en œuvre

VII. Les Roms et les Sintis dans des situations de crise et d’après crise (…)

Mesures recommandées aux institutions et aux structures de l’OSCE : (…)

117. Le HCMN continuera à s’acquitter de son mandat de prévention des conflits au stade le plus précoce possible.

Sofia 2004 (Décisions : Annexe à la Décision No. 14/04 ; Plan d’action de l’OSCE 2004 pour la promotion de l’égalité entre les sexes) V. Appui aux Etats participants de l’OSCE pour la mise en œuvre des engagements pertinents visant à promouvoir l’égalité entre les femmes et les hommes

(…)

d) Assurer l’égalité des chances en vue de la participation des femmes à la vie politique et publique

(…)

• Le Haut Commissaire pour les minorités nationales examinera des questions spéci- fiques relatives à la participation des femmes appartenant à des minorités nationales à la vie publique et privée ainsi qu’à des politiques et projets élaborés par son Bureau, prendra les mesures nécessaires pour combattre la double discrimination dont sont victimes ces femmes, selon qu’il conviendra, dans le cadre de son mandat de préven- tion des conflits ;

C. Représentant de l’OSCE pour la liberté des médias Copenhague 1997 (Annexe 1: Décision No. 193 du Conseil permanent, Mandat du Représentant de l’OSCE pour la liberté des médias) 1. Les Etats participants réaffirment les principes et engagements auxquels ils ont adhéré en matière de liberté des médias. Ils rappellent en particulier que la liberté d’expression est un droit de l’homme et fondamental, reconnu sur le plan international et un élé- ment capital de toute société démocratique ; et que la liberté, l’indépendance et le plu- ralisme des médias sont essentiels pour une société libre et ouverte et les systèmes de gouvernement responsables. Ayant à l’esprit les principes et engagements auxquels ils ont souscrit dans le cadre de l’OSCE et pleinement résolus à mettre en œuvre le para- graphe 11 de la Déclaration du Sommet de Lisbonne, les Etats participants décident de créer, sous l’égide du Conseil permanent, un poste de Représentant de l’OSCE pour la liberté des médias. L’objectif est de consolider la mise en œuvre des principes et engage- ments de l’OSCE et d’accroître l’efficacité de l’action concertée des Etats participants, en se fondant sur leurs valeurs communes. Les Etats participants confirment qu’ils coopé- reront sans réserve avec le Représentant de l’OSCE pour la liberté des médias. Il aidera

Les engagements de la dimension humaine de l’OSCE 69 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

les Etats participants, dans un esprit de coopération, à poursuivre leur engagement en faveur de la liberté, de l’indépendance et du pluralisme des médias.

2. Se fondant sur les principes et les engagements de l’OSCE, le Représentant de l’OSCE pour la liberté des médias suivra l’évolution des médias dans tous les Etats participants et, agissant sur cette base et en étroite coordination avec le Président en exercice, prô- nera et encouragera le plein respect des principes et engagements de l’OSCE concernant la liberté d’expression et des médias. A ce titre, il assumera une fonction en matière d’alerte rapide. Il examinera les problèmes graves, causés notamment par les entraves aux activités des médias et les conditions de travail défavorables des journalistes. Il coo- pérera étroitement avec les Etats participants, le Conseil permanent, le Bureau des ins- titutions démocratiques et des droits de l’homme (BIDDH), le Haut Commissaire pour les minorités nationales et, le cas échéant, avec d’autres organes de l’OSCE, ainsi qu’avec des associations de presse nationales et internationales.

3. Le Représentant de l’OSCE pour la liberté des médias s’attachera, comme l’indique ce paragraphe, à intervenir avec rapidité en cas de sérieux manquement par les Etats parti- cipants aux principes et engagements de l’OSCE concernant la liberté d’expression et la liberté de la presse. En cas de plainte relative à un sérieux manquement aux dits princi- pes et engagements, le Représentant de l’OSCE pour la liberté des médias recherchera, de manière appropriée, des contacts directs avec l’Etat participant et les autres parties concernées, évaluera les faits, aidera l’Etat participant et contribuera à la solution au problème. Il tiendra le Président en exercice informé de ses activités et rendra compte au Conseil permanent de leurs résultats et de ses observations et recommandations.

4. Le Représentant de l’OSCE pour la liberté des médias n’exerce pas de fonction juri- dictionnelle et son intervention ne peut en aucune manière préjuger des procédures légales, nationales ou internationales concernant les violations présumées des droits de l’homme. De même, les procédures nationales ou internationales concernant les viola- tions présumées des droits de l’homme n’empêcheront pas nécessairement le Représen- tant d’exécuter ses tâches telles qu’exposées dans le présent mandat.

5. Le Représentant de l’OSCE pour la liberté des médias peut recueillir et recevoir de toute source digne de foi des informations sur la situation des médias. Il s’appuiera en particulier sur les informations et analyses du BIDDH. Le Représentant de l’OSCE pour la liberté des médias aidera le BIDDH à évaluer les conditions nécessaires au bon fonc- tionnement de médias libres, indépendants et pluralistes avant, pendant et après les élections.

6. Le Représentant de l’OSCE pour la liberté des médias peut à tout moment recueillir et recevoir des Etats participants et d’autres parties intéressées (par exemple d’organi- sations ou d’institutions, de médias ou de leurs représentants, et d’ONG concernées) des demandes, des propositions et des commentaires visant à renforcer et à développer encore le respect des principes et engagements de l’OSCE, y compris les cas présumés sérieux d’intolérance de la part d’Etats participants qui utilisent les médias en violation des principes énoncés dans le Document de Budapest, chapitre VIII, paragraphe 25, et

70 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Partenaires de la mise en œuvre

dans les Décisions de la Réunion du Conseil de Rome, chapitre X. Il peut transmettre les demandes, propositions et commentaires au Conseil permanent en lui recommandant d’autres mesures à prendre, le cas échéant.

7. Le Représentant de l’OSCE pour la liberté des médias consultera en outre régulière- ment le Président en exercice et rendra périodiquement compte au Conseil permanent. Il peut être invité à présenter au Conseil permanent des rapports, dans le cadre de ce mandat, sur des questions spécifiques relatives à la liberté d’expression, et à la liberté, à l’indépendance et au pluralisme des médias. Il fera rapport chaque année à la Réu- nion sur la mise en œuvre des engagements concernant la dimension humaine ou à la Réunion d’examen de la mise en œuvre de tous les principes et engagements de l’OSCE concernant la liberté d’expression et la liberté des médias dans les Etats participants de l’OSCE.

8. Le Représentant de l’OSCE pour la liberté des médias ne communiquera avec aucune personne ou organisation pratiquant ou avalisant publiquement des actes de terrorisme ou de violence ni prendra note des communications d’une telle personne ou organisa- tion.

9. Le Représentant de l’OSCE pour la liberté des médias sera une éminente person- nalité internationale ayant une longue expérience et censée agir en toute impartialité. Dans l’exercice de ses fonctions, le Représentant de l’OSCE pour la liberté des médias sera guidé par son analyse indépendante et objective des différents paragraphes du pré- sent mandat.

10. Le Représentant de l’OSCE pour la liberté des médias examinera les affaires sérieu- ses relevant du présent mandat et se produisant dans l’Etat participant dont il est res- sortissant ou dans lequel il réside, si toutes les parties directement en cause, notamment l’Etat participant concerné, l’acceptent. Faute d’un tel accord, la question sera renvoyée au Président en exercice qui pourra charger un représentant spécial d’examiner ce cas.

11. Le Représentant de l’OSCE pour la liberté des médias coopérera, par des contacts réguliers, avec les organisations internationales compétentes, notamment avec l’Orga- nisation des Nations Unies et ses institutions spécialisées, ainsi qu’avec le Conseil de l’Europe, pour renforcer la coordination et éviter des activités redondantes.

12. Le Représentant de l’OSCE pour la liberté des médias sera nommé, conformément aux procédures de l’OSCE, par le Conseil ministériel sur recommandation du Président en exercice, après consultation des Etats participants. Il sera nommé pour trois ans et pourra être reconduit dans ses fonctions, selon la même procédure, pour un autre man- dat de trois ans.

(…)

14. Le bureau du Représentant de l’OSCE pour la liberté des médias sera situé à Vienne.

Les engagements de la dimension humaine de l’OSCE 71 Mise en œuvre des engagement de la dimension humaine Pa rt i e I

Bucarest 2001 (Annexe à la Décision 1 sur la lutte contre le terrorisme ; Plan d’action de Bucarest pour lutter contre le terrorisme) Promotion des droits de l’homme, de la tolérance et du multiculturalisme (…)

12. Représentant de l’OSCE pour la liberté des médias : Il examinera l’élaboration de projets visant à soutenir la tolérance à l’égard de personnes d’autres convictions ou croyances par l’intermédiaire des médias. Il favorisera les mesures visant à prévenir et à combattre le nationalisme agressif, le racisme, le chauvinisme, la xénophobie et l’anti- sémitisme dans les médias. Il continuera à encourager un débat pluraliste et une atten- tion accrue des médias pour promouvoir la tolérance de la diversité ethnique, religieuse, linguistique et culturelle et, dans ce contexte, facilitera l’accès du public aux médias et détectera tout propos haineux.

(…)

Appui à l’application de la loi et lutte contre la criminalité organisée (…)

23. Représentant pour la liberté des médias : Il coopérera en appuyant, sur demande, la rédaction de textes législatifs visant à prévenir l’abus des technologies de l’information à des fins terroristes de sorte que ces textes soient conformes aux engagements relatifs à la liberté d’expression et à la libre circulation de l’information.

Bucarest 2001 (Décisions : Décision No. 5) Le Conseil ministériel,

(…)

Invite les institutions de l’OSCE, et en particulier le Bureau des institutions démocra- tiques et des droits de l’homme, le Haut Commissaire pour les minorités nationales et le Représentant de l’OSCE pour la liberté des médias à porter une attention accrue aux manifestations de nationalisme agressif, de racisme, de chauvinisme, de xénophobie, d’antisémitisme et d’extrémisme violent, à lutter contre l’intolérance et la discrimina- tion fondée sur l’origine raciale ou ethnique, ou des opinions religieuses, politiques ou autres et à encourager le respect de l’état de droit, des valeurs démocratiques, des droits de l’homme et des libertés fondamentales, y compris la liberté d’expression, de pensée, de conscience, de religion ou de conviction.

Maastricht 2003 (Décisions : Annexe à la Décision No. 3/03 : Plan d’action visant à améliorer la situation des Roms et des Sintis dans l’espace de l’OSCE) Médias (…)

72 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Partenaires de la mise en œuvre

Mesures recommandées aux institutions et aux structures de l’OSCE : (…)

39. En coopération avec le BIDDH et avec les organisations internationales compéten- tes, le Représentant pour la liberté des médias devrait examiner comment l’OSCE pour- rait contribuer à l’établissement d’une radio européenne des Roms qui émettrait dans toute l’Europe. Le BIDDH et le Représentant pour la liberté des médias devraient orga- niser des débats publics, des campagnes antidiscrimination et des programmes de for- mation communs avec les médias et à leur intention.

40. Le Représentant pour la liberté des médias devrait envisager de faciliter des sémi- naires de formation à l’intention des journalistes roms.

41. Le Point de contact du BIDDH et le Représentant pour la liberté des médias organi- seront des tables rondes avec des journalistes sur l’image des communautés roms et sin- tis dans la société.

Sofia 2004 (Décisions : Annexe à la Décision No. 12/04 sur la tolérance et la non-discri- mination ; Décision No. 633 du Conseil permanent : Promotion de la tolérance et de la liberté des médias sur l’Internet) 4. Le Représentant de l’OSCE pour la liberté des médias continuera à jouer un rôle actif dans la promotion à la fois de la liberté d’expression et de l’accès à l’Internet ainsi qu’à observer les évolutions pertinentes dans tous les Etats participants. Il s’emploiera à prô- ner et à promouvoir les principes et les engagements de l’OSCE. A ce titre, il donnera notamment rapidement l’alerte lorsque des lois ou d’autres mesures interdisant les dis- cours motivés par des préjugés racistes, xénophobes, antisémites ou autres sont appli- quées de manière discriminatoire ou sélective à des fins politiques susceptibles d’abou- tir à entraver l’expression d’opinions et de points de vues différents ;

Sofia 2004 (Décisions : Annexe à la Décision No. 14/04 ; Plan d’action de l’OSCE 2004 pour la promotion de l’égalité entre les sexes) V. Appui aux Etats participants de l’OSCE pour la mise en œuvre des engagements pertinents visant à promouvoir l’égalité entre les femmes et les hommes (…)

d) Assurer l’égalité des chances en vue de la participation des femmes à la vie politique et publique

(…)

• Le Représentant de l’OSCE pour la liberté des médias fera preuve de vigilance face aux allégations d’actes d’intolérance grave et d’incitation à la discrimination à l’égard des femmes dans ou par les médias des Etats participants conformément au chapitre 6 de son mandat. Il informera les Etats participants de tels cas dans le cadre de ses rapports réguliers.

Les engagements de la dimension humaine de l’OSCE 73 3. Restrictions et dérogations

3.1 Étendue et nature des restrictions légitimes

Vienne 1989 (Questions relatives à la sécurité en Europe : Principes) (21) Les Etats participants veilleront à ce que l’exercice des droits mentionnés ci‑des- sus ne soit l’objet de restrictions que si celles‑ci sont prévues par la loi et compatibles avec les obligations qu’ils assument conformément au droit international, en particulier au Pacte international relatif aux droits civils et politiques, et avec leurs engagements internationaux, en particulier la Déclaration universelle des droits de l’homme. Ces res- trictions auront un caractère exceptionnel. Les Etats participants feront en sorte qu’el- les ne soient appliquées ni de façon abusive ni de façon arbitraire, mais de telle sorte que l’exercice effectif de ces droits soit sauvegardé.

Copenhague 1990 (16) Les Etats participants (…)

(16.3) — soulignent qu’aucune circonstance exceptionnelle quelle qu’elle soit, qu’il s’agisse d’un état de guerre ou d’une menace de guerre, d’instabilité politique intérieure, ou de tout autre état d’urgence, ne peut être invoquée pour justifier la torture ;

(…)

(24) (…) Toute restriction à des droits et libertés doit, dans une société démocratique, correspondre à l’un des objectifs de la loi et être strictement proportionnée à l’objet de celle‑ci.

3.2 Dérogations aux obligations en cas d’état d’urgence public

Copenhague 1990 (16) Les Etats participants (…)

Les engagements de la dimension humaine de l’OSCE 75 Restrictions et dérogations Pa rt i e I

(16.3) — soulignent qu’aucune circonstance exceptionnelle quelle qu’elle soit, qu’il s’agisse d’un état de guerre ou d’une menace de guerre, d’instabilité politique intérieure, ou de tout autre état d’urgence, ne peut être invoquée pour justifier la torture ;

(…)

(24) (…) Toute restriction à des droits et libertés doit, dans une société démocratique, correspondre à l’un des objectifs de la loi et être strictement proportionnée à l’objet de celle‑ci.

(25) Les Etats participants confirment que toute dérogation aux obligations relatives aux droits de l’homme et aux libertés fondamentales pendant un état d’urgence doit res- ter strictement dans les limites prévues par le droit international, en particulier par les instruments internationaux pertinents par lesquels ils sont liés, spécialement en ce qui concerne les droits auxquels il ne peut être dérogé. Ils réaffirment que :

(25.1) – les mesures dérogeant à de telles obligations doivent être prises strictement en conformité des règles procédurales définies dans ces instruments ;

(25.2) – l’état d’urgence doit être proclamé officiellement, publiquement et conformé- ment aux modalités établies par la loi ;

(25.3) – les mesures dérogeant à des obligations seront strictement limitées aux exigen- ces de la situation ;

(25.4) – ces mesures ne comporteront pas de discrimination uniquement fondée sur la race, la couleur, le sexe, la langue, la religion, l’origine sociale ou l’appartenance à une minorité.

Moscou 1991 (28) Les Etats participants estiment qu’il est important de protéger les droits de l’homme et les libertés fondamentales en cas d’état d’exception, de tenir compte des dispositions correspondantes du Document de la Réunion de Copenhague et de respecter les termes des conventions auxquelles ils sont parties.

(28.1) Les Etats Participants réaffirment que l’état d’exception n’est justifié que dans des circonstances de la plus exceptionnelle gravité, conformément aux obligations interna- tionales de l’Etat et aux engagements pris par lui dans le cadre de la CSCE. L’état d’ex- ception ne peut être utilisé pour renverser l’ordre démocratique constitutionnel ni viser la suppression des droits de l’homme et des libertés fondamentales internationalement reconnus. Si le recours à la force ne peut être évité, il doit être aussi raisonnable et limité que possible.

(28.2) L’état d’exception ne peut être proclamé que par un organe constitutionnel et dûment habilité à cet effet. Lorsque la décision d’instaurer l’état d’exception peut légale- ment être prise par le pouvoir exécutif, cette décision devrait être soumise dans les plus brefs délais à l’approbation ou au contrôle du parlement.

76 Les engagements de la dimension humaine de l’OSCE Pa rt i e I Dérogations aux obligations en cas d’état d’urgence public

(28.3) L’état d’exception doit être proclamé officiellement, publiquement et conformé- ment aux dispositions prévues par la loi. Cette décision précisera, si possible, le cadre territorial de l’état d’exception. L’Etat concerné mettra sans retard à la disposition de ses citoyens des informations sur les mesures qui auront été prises. L’état d’exception sera levé aussitôt que possible et ne sera pas maintenu en vigueur plus longtemps que les circonstances ne l’exigent.

(28.4) Il n’est pas permis d’instaurer ou de prolonger de facto l’état d’exception dans des conditions qui ne sont pas conformes aux dispositions légales en la matière.

(28.5) Les Etats participants s’efforceront d’assurer que l’activité normale des organes législatifs soit garantie dans toute la mesure possible durant l’état d’exception.

(…)

(28.7) Les Etats participants s’efforceront de s’abstenir de déroger aux obligations qui, selon les conventions internationales auxquelles ils sont parties, peuvent faire l’objet d’une dérogation lorsque l’état d’exception est en vigueur. (…) La portée et la durée d’ap- plication de ces mesures [dérogatoires à ces obligations] seront rigoureusement limi- tées par les exigences de la situation ; elles sont par nature des mesures d’exception et devraient être interprétées et appliquées avec retenue. (…)

(28.8) Les Etats participants veilleront à ce que les garanties légales nécessaires pour faire respecter l’Etat de droit soient maintenues pendant que l’état d’exception est en vigueur. Ils s’efforceront de prévoir dans leur législation un contrôle des règlements liés à l’état d’exception et de l’application de ces règlements.

(28.9) Les Etats participants s’efforceront de maintenir la liberté d’expression et la liberté d’information, conformément à leurs obligations et engagements internationaux, en vue de permettre une discussion publique sur le respect des droits de l’homme et des liber- tés fondamentales ainsi que sur la levée de l’état d’exception. Ils ne prendront, confor- mément aux normes internationales relatives à la liberté d’expression, aucune mesure visant à interdire aux journalistes l’exercice légitime de leur profession à moins que la situation ne rende de telles mesures absolument nécessaires.

(28.10) Lorsque l’état d’exception est proclamé ou levé sur le territoire d’un Etat par- ticipant, celui-ci en informera immédiatement l’Institution de la CSCE, ainsi que de toute mesure prise par dérogation à ses obligations internationales relatives aux droits de l’homme. L’Institution informera sans délai les autres Etats participants.

 Le Conseil décidera quelle sera cette institution.

Les engagements de la dimension humaine de l’OSCE 77  II. Engagements specifiques à la dimension humaine 1. Engagements relatifs au droit des peuples à l’autodétermination

Helsinki 1975 (Questions relatives à la sécurité en Europe : 1. (a) Déclaration sur les principes régissant les relations mutuelles des Etats participants ; Principes VIII) VIII. Egalité de droits des peuples et droit des peuples à disposer d’eux-mêmes Les Etats participants respectent l’égalité de droits des peuples et leur droit à disposer d’eux-mêmes, en agissant à tout moment conformément aux buts et aux principes de la Charte des Nations Unies et aux normes pertinentes du droit international, y compris celles qui ont trait à l’intégrité territoriale des Etats.

En vertu du principe de l’égalité de droits des peuples et de leur droit à disposer d’eux- mêmes, tous les peuples ont toujours le droit, en toute liberté, de déterminer, lorsqu’ils le désirent et comme ils le désirent, leur statut politique interne et externe, sans ingé- rence extérieure, et de poursuivre à leur gré leur déve­loppement politique, économique, social et culturel.

Les Etats participants réaffirment l’importance universelle du respect et de l’exercice effectif par les peuples de droits égaux et de leur droit à disposer d’eux-­mêmes, pour le développement de relations amicales entre eux de même qu’entre tous les Etats ; ils rap- pellent également l’importance de l’élimination de toute viola­tion de ce principe, quel- que forme qu’elle prenne.

Vienne 1989 (Questions relatives à la sécurité en Europe : Principes) (4) [Les Etats participants] confirment également qu’en vertu du principe de l’égalité des droits des peuples et de leur droit à disposer d’eux‑mêmes, et conformément aux dispositions pertinentes de l’Acte final, tous les peuples ont toujours le droit, en toute liberté, de déterminer, lorsqu’ils le désirent et comme ils le désirent, leur statut politique interne et externe, sans ingérence extérieure, et de poursuivre à leur gré leur développe- ment politique, économique, social et culturel.

Les engagements de la dimension humaine de l’OSCE 81 2. Engagements relatifs aux composantes structurelles d’une société démocratique

2.1 Provisions générales

Bonn 1990 (Préambule) (…) Les Etats participants,

Reconnaissant le lien qui existe entre le pluralisme politique et les économies de mar- ché et ayant souscrit aux principes concernant :

• la démocratie pluripartite basée sur des élections libres, périodiques et honnêtes ;

• la primauté du droit et l’égalité devant la loi pour tous, fondés sur le respect des droits de l’homme et sur des systèmes juridiques efficaces, accessibles et équitables ;

• une activité économique qui soutienne en conséquence la dignité humaine, qui exclue le travail forcé et la discrimination à l’encontre des travailleurs pour des raisons de race, de sexe, de langue, d’opinion politique ou de religion, et qui ne dénie pas aux tra- vailleurs le droit de créer librement des syndicats indépendants ou d’y adhérer,

(…)

Copenhague 1990 [Les Etats participants] reconnaissent que la démocratie pluraliste et l’Etat de droit sont essentiels pour garantir le respect de tous les droits de l’homme et de toutes les liber- tés fondamentales, le développement des contacts entre les personnes et la recherche de solutions à d’autres questions d’ordre humanitaire connexes. Par conséquent, ils se féli- citent de l’engagement pris par tous les Etats participants de parvenir aux idéaux de la démocratie et du pluralisme politique, ainsi que de leur détermination commune d’ins- taurer des sociétés démocratiques reposant sur des élections libres et sur l’Etat de droit.

(…)

Les engagements de la dimension humaine de l’OSCE 83 Engagements relatifs aux composantes structurelles d’une société démocratique Pa rt i e II

(6) Les Etats participants déclarent que la volonté du peuple, exprimée librement et équitablement dans le cadre d’élections périodiques et honnêtes, est le fondement de l’autorité et de la légitimité de tout gouvernement. Les Etats participants respecteront en conséquence le droit de leurs citoyens de participer au gouvernement de leur pays, soit directement, soit par l’intermédiaire de représentants librement choisis par eux dans le cadre d’élections équitables. Ils reconnaissent la responsabilité qui leur incombe de défendre et de protéger, conformément à leurs lois, à leurs obligations internatio- nales en matière de droits de l’homme et à leurs engagements internationaux, l’ordre démocratique librement établi par la volonté du peuple contre les activités de person- nes, groupes ou groupements ou organisations qui prennent part ou qui refusent de renoncer à des actes de terrorisme ou de violence visant à renverser cet ordre ou celui d’un autre Etat participant.

Paris 1990 (Une nouvelle ère de démocratie, de paix et d’unité) Nous nous engageons à édifier, consolider et raffermir la démocratie comme seul sys- tème de gouvernement de nos nations. A cet effet, nous nous conformerons à ce qui suit :

Les droits de l’homme et les libertés fondamentales sont inhérents à tous les êtres humains, inaliénables et garantis par la loi. La responsabilité première des gouverne- ments est de les protéger et de les promouvoir. Les observer et les exercer pleinement donnent leur fondement à la liberté, à la justice et à la paix.

Le gouvernement démocratique repose sur la volonté du peuple, exprimée à intervalles réguliers par des élections libres et loyales. La démocratie est fondée sur le respect de la personne humaine et de l’Etat de droit. Elle est le meilleur garant de la liberté d’ex- pression, de la tolérance envers tous les groupes de la société et de l’égalité des chances pour chacun.

La démocratie, de par son caractère représentatif et pluraliste, implique la responsabi- lité envers l’électorat, l’obligation pour les pouvoirs publics de se conformer à la loi et l’exercice impartial de la justice. Nul n’est au-dessus de la loi.

(…)

Nos Etats coopéreront et se soutiendront mutuellement pour rendre irréversibles les ac- quis démocratiques.

Moscou 1991 (17) Les Etats participants

(17.1) – condamnent sans réserve les forces qui tenteraient de renverser le gouverne- ment représentatif d’un Etat participant contre la volonté du peuple, exprimée par des élections libres et loyales, et en violation de l’ordre constitutionnel régulièrement éta- bli ;

84 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Provisions générales

(17.2) — soutiendront vigoureusement, conformément à la Charte des Nations Unies, en cas de renversement ou de tentative de renversement par des moyens antidémocrati- ques du gouvernement légalement élu d’un Etat participant à la CSCE, les organes légi- times de cet Etat qui défendent les droits de l’homme, la démocratie et l’Etat de droit, en vertu de l’engagement qu’ils ont pris en commun de s’opposer à toute tentative de porter atteinte à ces valeurs fondamentales ;

(…)

Maastricht 2003 (Stratégie de l’OSCE visant à faire face aux menaces pour la sécurité et la stabilité au XXIe siècle) 36. (…) En se fondant sur ses engagements dans la dimension humaine, l’OSCE s’at- tache à promouvoir dans toute sa région des conditions dans lesquelles tous puissent jouir pleinement des droits de l’homme et des libertés fondamentales sous la protec- tion d’institutions démocratiques efficaces et dans le cadre d’une procédure judiciaire régulière et de la primauté du droit. Ces mesures supposent un environnement sûr et des institutions sûres propices à un débat pacifique et permettant à toutes les person- nes et à tous les groupes de la société de défendre leurs intérêts. La société civile a un rôle important à jouer à cet égard et l’OSCE continuera à appuyer les organisations de la société civile et à contribuer à leur renforcement.

Maastricht 2003 (Document sur la stratégie de l’OSCE Concernant la dimension éco- nomique et environnementale) 2.2.1 Une bonne gestion des entreprises et des institutions fortes sont les pierres angu- laires d’une économie saine capable d’attirer les investissements et, de ce fait, de per- mettre aux Etats de réduire la pauvreté et l’inégalité, accroître l’intégration sociale ainsi que l’égalité des chances pour tous et de protéger l’environnement. Une bonne gou- vernance à tous les niveaux contribue à la prospérité, à la stabilité et à la sécurité. La paix, de bonnes relations internationales, la sécurité et la stabilité de l’Etat, ainsi que la sécurité et la sûreté de la personne au sein de l’Etat, fondée sur la primauté du droit et le respect des droits de l’homme jouent un rôle crucial dans la création du climat de confiance indispensable à un développement économique et social positif.

2.2.2. La bonne gouvernance est capitale pour tous les Etats participants et nous som- mes convenus d’œuvrer à l’échelon national, avec l’appui des institutions internationa- les compétentes, au renforcement de la bonne gouvernance dans tous ses aspects et à l’élaboration de méthodes de coopération mutuelle à cette fin.

2.2.3 La réalisation de la bonne gouvernance exige une approche stratégique globale et sur le long terme pour que les succès dans un domaine ne soient pas sapés par des fai- blesses dans d’autres. Nous coopérerons à l’élaboration de nos stratégies de bonne gou- vernance et mettront en commun nos expériences concernant les meilleures pratiques dans ce domaine.

Les engagements de la dimension humaine de l’OSCE 85 Engagements relatifs aux composantes structurelles d’une société démocratique Pa rt i e II

2.2 Elections

Voir aussi : á Partie I. 2.3.4 A : Le Bureau des institutions démocratiques et des droits de l’homme (BIDDH)

Copenhague 1990 (5) [Les Etats participants] déclarent solennellement que, parmi les principes de la jus- tice essentiels à l’expression complète de la dignité inhérente à la personne humaine et des droits égaux et inaliénables de tous les êtres humains, il faut mentionner les sui- vants :

(5.1) — des élections libres qui seront organisées à intervalles raisonnables, au scrutin secret ou suivant une procédure équivalente assurant la liberté du vote, dans des condi- tions garantissant effectivement la libre expression de la volonté des électeurs dans le choix de leurs représentants ;

(…)

(6) Les Etats participants déclarent que la volonté du peuple, exprimée librement et équitablement dans le cadre d’élections périodiques et honnêtes, est le fondement de l’autorité et de la légitimité de tout gouvernement. Les Etats participants respecteront en conséquence le droit de leurs citoyens de participer au gouvernement de leur pays, soit directement, soit par l’intermédiaire de représentants librement choisis par eux dans le cadre d’élections équitables. (…)

(7) Pour faire en sorte que la volonté du peuple soit le fondement des autorités publi- ques, les Etats participants

(7.1) — organiseront des élections libres à intervalles raisonnables, comme le prévoit la loi ;

(7.2) — permettront que tous les sièges, dans au moins une des chambres du pouvoir législatif national, soient librement disputés dans le cadre d’un vote populaire ;

(7.3) — garantiront un suffrage universel et égal aux citoyens majeurs ;

(7.4) — veilleront à ce que les votes soient émis au scrutin secret ou suivant une procé- dure équivalente assurant la liberté du vote et à ce qu’ils soient recensés et présentés avec objectivité, les résultats officiels étant rendus publics ;

(7.5) — respecteront le droit des citoyens de solliciter des fonctions politiques ou publi- ques, à titre individuel ou en tant que représentants de partis politiques ou d’organisa- tions, sans discrimination ;

(7.6) — respecteront le droit des individus ainsi que des groupes ou groupements de créer, en toute liberté, leurs propres partis ou autres organisations politiques, et fourni-

86 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Elections

ront à ces partis et organisations les garanties légales nécessaires pour leur permettre de se mesurer sur la base d’une égalité de traitement devant la loi et les autorités ;

(7.7) — veilleront à ce que la loi et l’ordre public de l’Etat contribuent à faire en sorte que les campagnes politiques se déroulent dans un climat d’équité et de liberté excluant toute pression administrative, violence ou intimidation qui interdirait aux partis et aux candidats d’exposer librement leurs opinions et leurs qualités, ou empêcherait les élec- teurs d’en prendre connaissance et d’en débattre ou de voter sans crainte de sanctions ;

(7.8) — veilleront à ce qu’aucune obstacle d’ordre juridique ou administratif ne s’oppose au libre accès aux médias sur la base de la non‑discrimination pour tous les groupes ou groupements politiques et toutes les personnes désirant participer à des élections ;

(7.9) — veilleront à ce que les candidats qui obtiennent le nombre nécessaire de voix requis par la loi soient dûment investis de leur fonction, et qu’il leur soit permis de conserver celle‑ci jusqu’à ce que leur mandat arrive à expiration ou qu’il y soit mis un terme pour toute autre raison d’une manière prescrite par la loi conformément à des procédures parlementaires et constitutionnelles démocratiques.

(8) — Les Etats participants estiment que la présence d’observateurs, étrangers et natio- naux, est de nature à améliorer le déroulement des élections dans les Etats où elles ont lieu. En conséquence, ils invitent des observateurs de tout autre Etat participant à la CSCE, ainsi que de toute institution et organisation privée compétente qui le souhaite- rait, à suivre le déroulement des opérations de leurs élections nationales, dans la mesure prévue par la loi. Ils s’appliqueront également à faciliter un accès analogue pour les élec- tions organisées à un niveau inférieur au niveau national. Ces observateurs s’engageront à ne pas s’immiscer dans les opérations électorales.

Paris 1990 (Une nouvelle ère de démocratie, de paix et d’unité) Nous affirmons que, sans discrimination, tout individu a le droit (…) :

• de participer à des élections libres et loyales,

(…)

Nous décidons d’établir un Bureau des élections libres à Varsovie, pour faciliter les contacts et l’échange d’informations sur les élections dans les Etats participants.

Lisbonne 1996 (Déclaration du sommet) 9. (…) Parmi les problèmes aigus relevant de la dimension humaine, les violations conti- nues des droits de l’homme, comme par exemple (…) la fraude électorale (…) continuent à mettre en péril la stabilité dans la région de l’OSCE. Nous sommes résolus à continuer de nous attaquer à ces problèmes.

Les engagements de la dimension humaine de l’OSCE 87 Engagements relatifs aux composantes structurelles d’une société démocratique Pa rt i e II

Istanbul 1999 (Déclaration du sommet) 26. Un grand nombre d’élections devant se tenir prochainement, nous sommes atta- chés à ce qu’elles soient libres, équitables et conformes aux principes et engagements de l’OSCE. C’est la seule manière de jeter les fondements stables d’un développement démocratique. (…) nous convenons de donner suite sans tarder aux conclusions et recommandations issues de l’évaluation des élections par le BIDDH. Nous apprécions le travail du BIDDH et de l’Assemblée parlementaire de l’OSCE – avant, pendant et après les élections – qui contribue également au processus démocratique. Nous sommes réso- lus à garantir intégralement aux personnes appartenant à des minorités le droit de vote et à faciliter aux réfugiés l’exercice du droit de participer aux élections se tenant dans leur pays d’origine. Nous nous engageons à assurer une compétition loyale entre candi- dats et entre partis, notamment en ce qui concerne leur accès aux médias et le respect du droit de réunion.

Istanbul 1999 (Charte de sécurité européenne : III. Notre réponse commune) 25. Nous réaffirmons notre obligation de tenir des élections libres et équitables confor- mément aux engagements de l’OSCE et notamment au Document de Copenhague 1990. Nous reconnaissons l’aide que le BIDDH peut apporter aux Etats participants dans l’éla- boration et l’application de la législation électorale. Conformément à ces engagements, nous inviterons aux élections les observateurs d’autres Etats participants, du BIDDH, de l’Assemblée parlementaire de l’OSCE et de toute autre institution et organisation appro- priée, qui souhaitent suivre le déroulement de nos scrutins. Nous convenons de donner suite sans tarder aux rapports d’évaluation des élections présentés par le BIDDH et à ses recommandations.

Porto 2002 (Décisions : Décision No.7 sur les engagements en matière d’élections) Le Conseil ministériel,

Rappelant les dispositions du Document de 1990 de la Réunion de Copenhague de la Conférence sur la dimension humaine de la CSCE,

Notant que des engagements supplémentaires (…) ont complété ces dispositions,

Réaffirmant la ferme intention d’exécuter ces engagements,

Reconnaissant que des élections démocratiques peuvent avoir lieu sous divers systèmes électoraux,

Conscient de l’expérience du BIDDH en matière d’aide aux Etats participants dans l’exé- cution de leurs engagements ayant trait aux élections,

Tenant compte de la Décision du Conseil permanent No 509 sur les normes et enga- gements internationaux : guide pratique des meilleures méthodes pour des élections démocratiques,

88 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Institutions démocratiques

Invite les Etats participants à tenir davantage compte des recommandations faites par le BIDDH à l’issue de l’observation des élections ;

(…)

Maastricht 2003 (Décisions : Décision No. 5/03 sur les élections) Le Conseil ministériel,

(…)

Se félicitant de la poursuite d’une coopération efficace entre le BIDDH et l’Assemblée parlementaire de l’OSCE en matière d’observation des élections,

Se félicitant du document « Existing Commitments for Democratic Elections in OSCE Participating States : A Progress Report » (ODIHR.GAL/39/03), qui a été établi par le BIDDH et présenté aux Etats participants en juin de cette année,

Sachant en particulier que la confiance de l’électorat dans tout le processus, la trans- parence des procédures électorales et la responsabilité des autorités chargées de la conduite des élections sont nécessaires, prie les Etats participants d’intensifier leur coo- pération avec le BIDDH dans ce domaine,

Charge le BIDDH d’examiner les moyens d’améliorer l’efficacité de son assistance aux Etats participants pour le suivi des recommandations faites dans les rapports d’observa- tion des élections par le BIDDH (…) ;

2.3 Institutions démocratiques

2.3.1 Provisions générales Copenhague 1990 (3) [Les Etats participants] réaffirment que la démocratie est un élément inhérent à l’Etat de droit. Ils reconnaissent l’importance du pluralisme des organisations politiques.

(4) Ils confirment qu’ils respecteront le droit de chacun d’entre eux de choisir et de déve- lopper librement son système politique, social, économique et culturel, conformément aux normes internationales communément admises en matière de droits de l’homme. Dans l’exercice de ce droit, ils veilleront à ce que leurs lois, règlements, pratiques et poli- tiques soient conformes à leurs obligations découlant du droit international et soient harmonisés avec les dispositions de la Déclaration sur les principes et les autres engage- ments pris dans le cadre de la CSCE.

(5) Ils déclarent solennellement que, parmi les principes de la justice essentiels à l’ex- pression complète de la dignité inhérente à la personne humaine et des droits égaux et inaliénables de tous les êtres humains, il faut mentionner les suivants :

Les engagements de la dimension humaine de l’OSCE 89 Engagements relatifs aux composantes structurelles d’une société démocratique Pa rt i e II

(5.1) — des élections libres qui seront organisées à intervalles raisonnables, au scrutin secret ou suivant une procédure équivalente assurant la liberté du vote, dans des condi- tions garantissant effectivement la libre expression de la volonté des électeurs dans le choix de leurs représentants ;

(5.2) — une forme de gouvernement de type représentatif et dans laquelle le pouvoir exécutif est responsable devant le parlement élu ou le corps électoral ;

(5.3) — le devoir du gouvernement et des autorités publiques de se conformer à la consti- tution et d’agir conformément à la loi ;

(5.4) — une séparation claire entre l’Etat et les partis politiques ; en particulier les partis politiques ne pourront se confondre avec l’Etat ;

(5.5) — l’activité du gouvernement et de l’administration ainsi que celle des autorités judiciaires doit s’exercer conformément au régime établi par la loi. Le respect de celui‑ci doit être assuré ;

(5.6) — les forces militaires et la police doivent être placées sous le contrôle de l’autorité civile, devant laquelle elles sont responsables ;

(…)

(5.8) — les lois – adoptées au terme d’une procédure publique – et les règlements font l’objet d’une publication qui est la condition de leur applicabilité. Ces textes seront accessibles à tous ;

(…)

(6) Les Etats participants déclarent que la volonté du peuple, exprimée librement et équitablement dans le cadre d’élections périodiques et honnêtes, est le fondement de l’autorité et de la légitimité de tout gouvernement. Les Etats participants respecteront en conséquence le droit de leurs citoyens de participer au gouvernement de leur pays, soit directement, soit par l’intermédiaire de représentants librement choisis par eux dans le cadre d’élections équitables. Ils reconnaissent la responsabilité qui leur incombe de défendre et de protéger, conformément à leurs lois, à leurs obligations internatio- nales en matière de droits de l’homme et à leurs engagements internationaux, l’ordre démocratique librement établi par la volonté du peuple contre les activités de person- nes, groupes ou groupements ou organisations qui prennent part ou qui refusent de renoncer à des actes de terrorisme ou de violence visant à renverser cet ordre ou celui d’un autre Etat participant.

(7) Pour faire en sorte que la volonté du peuple soit le fondement des autorités publi- ques, les Etats participants

(…)

90 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Institutions démocratiques

(7.2) — permettront que tous les sièges, dans au moins une des chambres du pouvoir législatif national, soient librement disputés dans le cadre d’un vote populaire ;

(…)

(7.9) — veilleront à ce que les candidats qui obtiennent le nombre nécessaire de voix requis par la loi soient dûment investis de leur fonction, et qu’il leur soit permis de conserver celle‑ci jusqu’à ce que leur mandat arrive à expiration ou qu’il y soit mis un terme pour toute autre raison d’une manière prescrite par la loi conformément à des procédures parlementaires et constitutionnelles démocratiques.

(…)

(26) Les Etats participants reconnaissent qu’une démocratie vigoureuse dépend de l’exis- tence, comme partie intégrante de la vie nationale, de valeurs et de pratiques démocrati- ques ainsi que d’une gamme étendue d’institutions démocratiques. A ces fins, ils encou- rageront, faciliteront et, le cas échéant, appuieront les efforts concrets de coopération et le partage d’informations, d’idées et d’expertise et les contacts directs ainsi que la coo- pération entre individus, groupes et organisations dans les domaines suivants :

• droit constitutionnel, réformes et développement en la matière,

• législation électorale, organisation et observation des élections,

• création et administration de cours et tribunaux et de systèmes juridiques,

• mise en place d’une administration publique impartiale et efficace dans laquelle le recrutement et l’avancement sont fondés sur le mérite,

• application de la loi,

• collectivités locales et décentralisation,

• accès à l’information et protection de la vie privée,

• création de partis politiques et leur rôle dans des sociétés pluralistes,

• liberté et indépendance des syndicats,

• mouvements coopératifs,

• création d’autres formes d’associations libres et de groupes d’intérêt public,

• presse, indépendance des médias, vie intellectuelle et culturelle,

• enseignement, dans les établissements éducatifs, portant sur les valeurs, les institu- tions et les pratiques démocratiques, et promotion d’une atmosphère de libre discus- sion.

Les engagements de la dimension humaine de l’OSCE 91 Engagements relatifs aux composantes structurelles d’une société démocratique Pa rt i e II

Ces efforts comprendront toute l’étendue de la coopération dans le cadre de la dimen- sion humaine de la CSCE, en s’attachant, entre autres, aux sujets suivants : formation, échange d’informations, d’ouvrages et de matériel pédagogique, programmes et pro- jets de coopération, échanges et conférences d’universitaires et de spécialistes, bourses d’études, bourses de recherche, fourniture de services d’experts et de services consulta- tifs, contacts et programmes commerciaux et scientifiques.

(27) Les Etats participants faciliteront également la création et le renforcement d’ins- titutions nationales indépendantes dans le cadre des droits de l’homme et de l’Etat de droit, qui puissent aussi servir de centres de coordination et de coopération entre ces institutions dans les Etats participants. Ils proposent que la coopération soit encouragée entre les parlementaires des Etats participants, notamment par les associations inter- parlementaires existantes et aussi par la création de commissions mixtes et l’organisa- tion de débats télévisés avec la participation de parlementaires, de réunions et de tables rondes. Ils encourageront également les institutions existantes telles que les organisa- tions du système des Nations Unies et le Conseil de l’Europe à poursuivre et à accroître les activités qu’elles ont entreprises dans ce domaine.

Moscou 1991 (18.1) Les lois seront élaborées et adoptées au terme d’une procédure ouverte exprimant la volonté du peuple, directement ou par l’intermédiaire de ses représentants élus.

2.3.2 Gouvernement décentralisé, structures et corps spécifiques Genève 1991 (IV) Conscients de leur diversité de leurs systèmes constitutionnels qui varient d’un pays à l’autre, qui fait qu’une seule et même approche n’est pas nécessairement partout appli- cable, les Etats participants notent avec intérêt que des résultats positifs ont été obtenus par certains d’entre eux, selon des voies démocratiques appropriées, entre autres :

• par des organes de consultation et de décision dans lesquels les minorités sont repré- sentées, en particulier pour ce qui est de l’éducation, de la culture et de la religion ;

• par des organes et assemblées élus chargés des affaires des minorités nationales ;

• par une administration locale et autonome, ainsi que par une autonomie sur une base territoriale, notamment grâce à l’existence d’organes consultatifs, législatifs et exécu- tifs constitués par voie d’élections libres et périodiques ;

• par la gestion autonome, par une minorité nationale, des aspects relatifs à son identité dans les cas où une autonomie sur une base territoriale n’est pas applicable ;

• par des formes décentralisées ou locales d’administration ;

(…)

92 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Institutions démocratiques

Helsinki 1992 (Décisions : VI. La dimension humaine) Les Etats participants

(53) S’efforceront, en vue de renforcer la participation démocratique et l’édification d’institutions démocratiques et en développant la coopération entre eux, de parta- ger leur expérience respective du fonctionnement de la démocratie à l’échelon local et régional et, à cet égard, notent avec satisfaction la mise en place, dans ce domaine, du réseau d’information et d’éducation du Conseil de l’Europe ;

(54) Faciliteront les contacts entre les autorités locales et régionales et encourageront diverses formes de coopération entre elles.

2.3.3 Contrôle civil démocratique des forces de sécurité intérieures, des forces militaires et paramilitaires, des services de renseignement et de la police Copenhague 1990 (5) [Les Etats participants] déclarent solennellement que, parmi les principes de la jus- tice essentiels à l’expression complète de la dignité inhérente à la personne humaine et des droits égaux et inaliénables de tous les êtres humains, il faut mentionner les sui- vants :

(…)

(5.6) – les forces militaires et la police doivent être placées sous le contrôle de l’autorité civile, devant laquelle elles sont responsables ;

Moscou 1991 (25) Les Etats participants

(25.1) – assureront que leurs forces militaires et paramilitaires et leurs services de sécu- rité intérieure, de renseignement et de police soient placés sous la direction et le contrôle effectifs de autorités civiles compétentes ;

(25.2) – maintiendront et, le cas échéant, renforceront le contrôle de l’exécutif sur l’uti- lisation des forces militaires et paramilitaires, ainsi que sur les activités des services de sécurité intérieure, de renseignement et de police ;

(25.3) – prendront des mesures appropriées pour créer, lorsqu’il n’en existe pas, et main- tenir des moyens efficaces de supervision par le pouvoir législatif de tous ces services, forces et activités.

Budapest 1994 (Décisions : IV. Code de conduite relatif aux aspects politico-militaires de la sécurité) 20. Les Etats participants considèrent que le contrôle politique démocratique des forces militaires, paramilitaires et de sécurité intérieure ainsi que des services de renseigne- ments et de police est un élément indispensable de la stabilité et de la sécurité. Ils pour-

Les engagements de la dimension humaine de l’OSCE 93 Engagements relatifs aux composantes structurelles d’une société démocratique Pa rt i e II

suivront l’intégration de leurs forces armées dans la société civile comme une manifes- tation importante de la démocratie.

21. Chaque Etat participant assurera et maintiendra en tout temps la conduite et le con- trôle efficaces de ses forces militaires, paramilitaires et de sécurité par des autorités éta- blies constitutionnellement et investies d’une légitimité démocratique. Chaque Etat par- ticipant instituera les contrôles nécessaires pour veiller à ce que les autorités en ques- tion s’acquittent de leurs responsabilités constitutionnelles et légales. Les Etats partici- pants définiront clairement le rôle et les missions de leurs forces ainsi que leur obliga- tion d’agir exclusivement dans le cadre constitutionnel.

22. Chaque Etat participant fera en sorte que son parlement approuve le budget des dépenses militaires. Chaque Etat participant, compte dûment tenu des impératifs de la sécurité nationale, modérera ses dépenses militaires et assurera la transparence des programmes de défense de même que l’accès du public aux informations relatives aux forces armées.

23. Chaque Etat participant, tout en prenant des mesures pour que chaque membre des forces armées puisse exercer ses droits civiques, veillera à ce que ses forces armées elles‑mêmes soient politiquement neutres.

24. Chaque Etat participant prendra et maintiendra des mesures pour se prémunir contre une utilisation accidentelle ou non autorisée de moyens militaires.

25. Les Etats participants s’abstiendront de tolérer ou d’entretenir des forces qui échap- peraient au contrôle de leurs autorités constitutionnellement établies ou n’auraient pas à leur rendre compte. Si un Etat participant n’est pas en mesure d’exercer son autorité sur de telles forces, il pourra procéder à des consultations au sein de la CSCE pour exami- ner les mesures à prendre.

(…)

36. Chaque Etat participant veillera à ce que toute décision assignant à ses forces armées des missions de sécurité intérieure soit prise selon des procédures constitutionnelles. Une telle décision spécifiera les missions données aux forces armées et précisera qu’elles seront accomplies sous le contrôle effectif d’autorités constitutionnellement établies et dans le respect de la légalité. (…)

2.3.4 Institutions nationales indépendantes traitant des droits de l’homme Copenhague 1990 (27) Les Etats participants faciliteront (…) la création et le renforcement d’institutions nationales indépendantes dans le cadre des droits de l’homme et de l’Etat de droit, qui puissent aussi servir de centres de coordination et de coopération entre ces institutions dans les Etats participants. Ils proposent que la coopération soit encouragée entre les parlementaires des Etats participants, notamment par les associations interparlemen- taires existantes et aussi par la création de commissions mixtes et l’organisation de

94 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Institutions démocratiques

débats télévisés avec la participation de parlementaires, de réunions et de tables rondes. Ils encourageront également les institutions existantes telles que les organisations du système des Nations Unies et le Conseil de l’Europe à poursuivre et à accroître les acti- vités qu’elles ont entreprises dans ce domaine.

2.3.5 Organisations non gouvernementales Voir aussi : á Partie I. 2.3.3 : Individus, défenseurs des droits de l’homme et organisations non gouvernementales

Moscou 1991 (43) Les Etats participants reconnaîtront comme ONG les organisations qui se décla- rent comme telles, selon les procédures nationales en vigueur, et faciliteront à ces orga- nisations le libre exercice de leurs activités sur leur territoire ; à cet effet, ils

(43.1) – s’efforceront de trouver les moyens de renforcer encore les possibilités de contacts et d’échanges de vues entre les ONG, les autorités nationales et les institutions publiques compétentes ;

(43.2) – s’efforceront de faciliter le séjour dans leur pays d’ONG venues de l’un quelcon- que des Etats participants pour observer la situation en ce qui concerne la dimension humaine ;

(43.3) – accueilleront favorablement les activités des ONG, notamment lorsqu’elles observent l’application des engagements souscrits dans le cadre de la CSCE au titre de la dimension humaine ;

(43.4) – autoriseront les ONG, étant donné l’importance de leur rôle dans le cadre de la dimension humaine de la CSCE, à porter leurs vues à la connaissance de leurs gouver- nements respectifs et des gouvernements de tous les autres Etats participants au cours des futurs travaux de la CSCE sur la dimension humaine.

Istanbul 1999 (Charte de sécurité européenne : III. Notre réponse commune) 27. Les organisations non gouvernementales (ONG) peuvent jouer un rôle crucial dans l’action en faveur des droits de l’homme, de la démocratie et de l’état de droit. Elles font partie intégrante d’une société civile forte. Nous nous engageons à renforcer la capacité des ONG de contribuer pleinement au développement de la société civile et au respect des droits de l’homme et des libertés fondamentales.

Maastricht 2003 (Stratégie de l’OSCE visant à faire face aux menaces pour la sécurité et la stabilité au XXIe siècle) 36. (…) En se fondant sur ses engagements dans la dimension humaine, l’OSCE s’at- tache à promouvoir dans toute sa région des conditions dans lesquelles tous puissent jouir pleinement des droits de l’homme et des libertés fondamentales sous la protec- tion d’institutions démocratiques efficaces et dans le cadre d’une procédure judiciaire régulière et de la primauté du droit. Ces mesures supposent un environnement sûr et

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des institutions sûres propices à un débat pacifique et permettant à toutes les person- nes et à tous les groupes de la société de défendre leurs intérêts. La société civile a un rôle important à jouer à cet égard et l’OSCE continuera à appuyer les organisations de la société civile et à contribuer à leur renforcement.

2.3.6 Encourager la transparence, lutter contre la corruption et améliorer la gestion des ressources publiques Istanbul 1999 (Charte de sécurité européenne : III. Notre réponse commune) 33. Nous réaffirmons notre attachement à l’état de droit. Nous reconnaissons que la cor- ruption constitue une grave menace pour les valeurs partagées de l’OSCE. Elle engen- dre l’instabilité et touche de nombreux aspects des dimensions sécuritaire, économi- que et humaine. Les Etats participants s’engagent à redoubler d’efforts pour combattre la corruption et les conditions qui la favorisent, et à promouvoir un cadre propice aux bonnes pratiques de gestion des affaires publiques et à l’intégrité publique. Ils feront un meilleur usage des instruments internationaux existants et s’aideront les uns les autres dans la lutte contre la corruption. Dans le cadre de son action en faveur de l’état de droit, l’OSCE coopérera avec les ONG qui luttent pour susciter dans le public et dans les milieux d’affaires un ferme consensus contre les pratiques de corruption.

Maastricht 2003 (Document sur la stratégie de l’OSCE concernant la dimension éco- nomique et environnementale) Promouvoir la transparence et lutter contre la corruption

2.2.4 La transparence dans la conduite des affaires publiques est une condition essen- tielle de la responsabilisation des Etats et de la participation active de la société civile au processus économique. La transparence accroît la prévisibilité et la confiance dans une économie qui fonctionne avec une législation appropriée et dans le plein respect de la primauté du droit. Des médias libres et pluralistes qui bénéficient d’une indépendance rédactionnelle maximale par rapport aux pressions politiques et financières ont un rôle important à jouer pour assurer cette transparence.

2.2.5 Nous ferons en sorte que nos gouvernements soient plus transparents en élaborant plus avant les processus et institutions pour fournir des informations en temps oppor- tun, notamment des statistiques fiables, sur des questions présentant un intérêt général dans les domaines économique et environnemental pour les médias, le monde des affai- res, la société civile et les citoyens, afin de promouvoir un dialogue éclairé et coopératif. Tout cela est essentiel à un processus décisionnel qui tienne compte des réalités chan- geantes ainsi que des besoins et souhaits de la population.

2.2.6 La transparence est importante également pour l’exposition et la poursuite de tou- tes les formes de corruption qui sapent nos économies et nos sociétés. Outre la transpa- rence, la lutte contre la corruption exige que les Etats participants adoptent une straté- gie globale et sur le long terme en la matière.

96 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Règles de l’État de droit

2.2.7 Nous sommes d’accord pour faire de l’élimination de toutes les formes de cor- ruption une priorité. Nous envisagerons d’adhérer aux conventions internationales et autres instruments dans le domaine de la lutte contre la corruption, notamment les ins- truments mis au point par le Conseil de l’Europe et l’Organisation de coopération et de développement économiques (OCDE), encouragerons leur ratification et appuie- rons leur mise en œuvre intégrale. Nous nous félicitons de l’adoption de la Convention des Nations Unies contre la corruption et espérons que cet instrument sera rapidement signé et ratifié et qu’il entrera en vigueur dès que possible. Améliorer la gestion des ressources publiques 2.2.8 Une autre composante de la bonne gouvernance est la gestion efficace des res- sources publiques par des institutions fortes et qui fonctionnent bien, un service civil, professionnel et efficace ainsi que des processus budgétaires sains. Une bonne gestion des ressources publiques, notamment la collecte de l’impôt, l’établissement et l’exécu- tion du budget ainsi que les achats publics, est particulièrement importante pour offrir les meilleurs services sociaux et publics possibles. Nous nous attacherons à assurer une base financière solide à nos systèmes administratifs publics et à renforcer plus avant leur efficacité et leur efficience à tous les niveaux. Sofia 2004 (Décisions : Décision No. 11/04 sur la lutte contre la corruption) Le Conseil ministériel, (…) Reconnaissant que la Convention des Nations Unies contre la corruption, adoptée par l’Assemblée générale des Nations Unies le 31 octobre 2003 à New York, marque un pro- grès majeur dans la coopération internationale dans le domaine de la lutte contre la cor- ruption et offre la possibilité d’une réaction mondiale à ce problème, Encourage les Etats participants de l’OSCE qui ne l’ont pas encore fait, à signer et à rati- fier la Convention des Nations Unies contre la corruption dans les meilleurs délais afin d’assurer son entrée en vigueur rapide et de l’appliquer intégralement. (…) 2.4 Règles de l’État de droit Voir aussi : á Partie I. 3 : Restrictions et dérogations á Partie II. 3.1.4 : Droit de ne pas être arrêté ou détenu arbitrairement á Partie II. 3.1.5 : Droit à un procès équitable á Partie II. 3.1.6 : Droit à des recours efficaces

2.4.1 Provisions générales Vienne 1989 (Questions relatives à la sécurité en Europe : Principes) (13.4) [les Etats participants] garantiront effectivement le droit de chacun de connaître ses droits et devoirs dans ce domaine et d’agir en conséquence, et, à cette fin, publieront

Les engagements de la dimension humaine de l’OSCE 97 Engagements relatifs aux composantes structurelles d’une société démocratique Pa rt i e II

et rendront accessibles toute la législation, la réglementation et les procédures relatives aux droits de l’homme et aux libertés fondamentales ;

Copenhague 1990 (2) Ils sont déterminés à soutenir et à promouvoir les principes de justice qui consti- tuent les fondements de l’Etat de droit. Ils considèrent que l’Etat de droit ne signifie pas simplement une légalité formelle assurant régularité et cohérence dans l’instauration et la mise en œuvre de l’ordre démocratique mais bien la justice fondée sur la reconnais- sance et la pleine acceptation de la valeur suprême de la personne humaine et garantie par des institutions offrant un cadre pour son expression la plus complète.

(3) Ils réaffirment que la démocratie est un élément inhérent à l’Etat de droit. (…)

(…)

(5) Ils déclarent solennellement que, parmi les principes de la justice essentiels à l’ex- pression complète de la dignité inhérente à la personne humaine et des droits égaux et inaliénables de tous les êtres humains, il faut mentionner les suivants :

(…)

(5.3) – le devoir du gouvernement et des autorités publiques de se conformer à la consti- tution et d’agir conformément à la loi ;

(…)

(5.5) – l’activité du gouvernement et de l’administration ainsi que celle des autorités judiciaires doit s’exercer conformément au régime établi par la loi. Le respect de celui‑ci doit être assuré ;

(…)

(5.7) – les droits de l’homme et les libertés fondamentales doivent être garantis par la loi et conformément aux obligations découlant du droit international ;

(5.8) – les lois – adoptées au terme d’une procédure publique – et les règlements font l’objet d’une publication qui est la condition de leur applicabilité. Ces textes seront accessibles à tous ;

(5.9) – tous les individus sont égaux devant la loi et ont droit sans aucune discrimina- tion à une protection égale de la loi. A cet égard, la loi interdit toute discrimination et garantit à toutes les personnes une protection égale et effective contre toute discrimina- tion, quels qu’en soient les motifs ;

(…)

98 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Règles de l’État de droit

(5.15) – toute personne arrêtée ou détenue pour une infraction pénale a le droit d’être aussitôt traduite devant un juge ou un autre magistrat habilité par la loi à exercer une telle fonction, qui statuera sur la légalité de son arrestation ou de sa détention ;

(…)

(5.18) – nul ne peut être accusé d’une infraction pénale, jugé ou reconnu coupable à moins que cette infraction ne soit prévue par une loi qui en définit les éléments avec clarté et précision ;

(5.19) – toute personne est présumée innocente aussi longtemps que sa culpabilité n’est pas prouvée conformément à la loi ;

(5.20) – considérant l’importance de la contribution des instruments internationaux concernant les droits de l’homme à l’Etat de droit au plan interne, les Etats participants réaffirment qu’ils envisageront d’adhérer au Pacte international relatif aux droits civils et politiques, au Pacte international relatif aux droits économiques, sociaux et culturels et aux autres instruments internationaux pertinents, s’ils ne l’ont pas encore fait ;

(5.21) – afin de compléter les recours internes et de mieux garantir le respect par les Etats participants des obligations internationales souscrites par eux, les Etats partici- pants envisageront d’adhérer à une convention internationale de caractère régional ou universel relative à la protection des droits de l’homme, tels la Convention européenne des droits de l’homme ou le Protocole facultatif se rapportant au Pacte international relatif aux droits civils et politiques, qui prévoient des procédures de recours individuels devant des instances internationales.

(…)

(12) Les Etats participants, désireux d’assurer une meilleure transparence dans la mise en œuvre des engagements souscrits au titre de la dimension humaine de la CSCE dans le Document de clôture de Vienne, décident d’admettre, à titre de mesure de confiance, la présence d’observateurs envoyés par des Etats participants et de représentants d’or- ganisations non gouvernementales ainsi que d’autres personnes intéressées lors de pro- cédures engagées devant des tribunaux, comme prévu par la législation nationale et le droit international ; il est entendu que le huis clos ne peut être prononcé que dans les circonstances prévues par la loi et conformément aux obligations découlant du droit international et aux engagements internationaux.

(…)

(24) Les Etats participants veilleront à ce que l’exercice de tous les droits de l’homme et libertés fondamentales énoncés plus haut ne soit l’objet de restrictions que si celles‑ci sont prévues par la loi et compatibles avec les obligations qu’ils assument conformé- ment au droit international, en particulier au Pacte international relatif aux droits civils et politiques, et avec leurs engagements internationaux, en particulier la Déclaration universelle des droits de l’homme. Ces restrictions auront un caractère exceptionnel.

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Les Etats participants feront en sorte qu’elles ne soient appliquées ni de façon abusive ni de façon arbitraire, mais de telle sorte que l’exercice effectif de ces droits soit garanti. Toute restriction à des droits et libertés doit, dans une société démocratique, correspon- dre à l’un des objectifs de la loi et être strictement proportionnée à l’objet de celle‑ci.

Moscou 1991 (18.1) Les lois seront élaborées et adoptées au terme d’une procédure ouverte exprimant la volonté du peuple, directement ou par l’intermédiaire de ses représentants élus.

(…)

(27) Les Etats participants

(27.1) – expriment leur intention de coopérer dans les différents domaines du droit : constitutionnel, administratif, commercial, civil et social et autres domaines pertinents, afin de mettre au point, en particulier dans les pays où il n’en existe pas encore, des sys- tèmes juridiques fondés sur le respect des droits de l’homme, de l’Etat de droit et de la démocratie ;

(27.2) – envisagent à cette fin de poursuivre et renforcer la coopération juridique et administrative bilatérale et multilatérale, entre autres dans les domaines suivants :

• développement d’une administration efficace ;

• assistance à l’élaboration de lois et textes réglementaires ;

• formation de personnel administratif et juridique ;

• échange d’ouvrages et de périodiques juridiques.

Budapest 1994 (Décisions : VIII. La dimension humaine) 18. Les Etats participants soulignent que toute action des autorités publiques doit être conforme à la loi, de sorte que soit garantie la sécurité légale du citoyen.

2.4.2 Indépendance de la justice et des juristes, fonctionnement impartial des services judiciaires publics Copenhague 1990 (5) [Les Etats participants] déclarent solennellement que, parmi les principes de la jus- tice essentiels à l’expression complète de la dignité inhérente à la personne humaine et des droits égaux et inaliénables de tous les êtres humains, il faut mentionner les sui- vants :

(…)

(5.12) — l’indépendance des juges et le fonctionnement impartial de la justice seront assurés ;

100 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Règles de l’État de droit

(5.13) — l’indépendance des avocats sera reconnue et protégée, notamment quant aux conditions de recrutement et d’exercice de leur activité ;

Moscou 1991 (19) Les Etats participants

(19.1) — respecteront les normes internationalement reconnues en ce qui concerne l’in- dépendance des juges et des avocats, ainsi que le fonctionnement impartial de la justice, notamment les normes inscrites dans la Déclaration universelle des droits de l’homme et le Pacte international relatif aux droits civils et politiques ;

(19.2) — en appliquant ces normes et engagements, veilleront particulièrement à ce que l’indépendance de la magistrature soit garantie et inscrite dans la constitution ou dans la législation nationale et qu’elle soit effectivement respectée, en accordant une atten- tion particulière aux Principes fondamentaux relatifs à l’indépendance de la magistra- ture, qui ont pour objet, notamment

i) d’interdire que la magistrature soit soumise à des influences abusives ;

ii) d’empêcher que les décisions judiciaires puissent être révisées par les autorités admi- nistratives, sous réserve du droit des autorités compétentes d’atténuer ou de commuer les peines prononcées par des magistrats conformément à la loi ;

iii) de protéger les libertés d’expression et d’association des magistrats, qui ne doivent être limitées que par les contraintes liées à la nature de leurs fonctions ;

iv) de garantir que les juges aient une formation et une qualification appropriées et qu’ils soient désignés sans discrimination ;

v) de garantir aux magistrats d’inamovibilité et des conditions de service satisfaisantes, y compris en ce qui concerne la promotion ;

vi) de garantir le respect de l’immunité ;

vii) de garantir qu’en ce qui concerne les magistrats, les mesures disciplinaires soient prises et la suspension ou la révocation prononcées conformément à la loi.

(20) Pour promouvoir l’indépendance de la magistrature, les Etats participants

(20.1) — reconnaîtront le rôle important que les associations nationales et internatio- nales de magistrats et d’avocats peuvent jouer pour faire respecter l’indépendance de leurs membres et pour offrir des moyens d’enseignement et de formation sur le rôle de la magistrature et des professions juridiques dans la société ;

(20.2) — encourageront et faciliteront le dialogue, les échanges et la coopération entre les associations nationales et autres organisations qui veillent à ce que soit respectée l’indépendance de la magistrature et à ce que la protection des avocats soit assurée ;

Les engagements de la dimension humaine de l’OSCE 101 Engagements relatifs aux composantes structurelles d’une société démocratique Pa rt i e II

(20.3) — coopéreront, entre autres par le dialogue, les rencontres et les échanges, afin de déterminer les cas dans lesquels des problèmes se posent en ce qui concerne la protec- tion de l’indépendance des magistrats et des avocats, et de trouver des moyens de traiter et de résoudre ces problèmes ;

(20.4) — coopéreront de manière continue dans des domaines comme la formation des magistrats et des avocats, de même que dans la rédaction et l’application de lois visant à renforcer le respect de l’indépendance de ces magistrats et avocats et du fonctionne- ment impartial de la justice.

Istanbul 1999 (Charte de sécurité européenne : IV. Nos instruments communs) 45. Nous encouragerons aussi le développement de systèmes judiciaires indépendants qui jouent un rôle clef en offrant des voies de recours en cas de violations des droits de l’homme, et prêterons conseil et assistance pour la réforme de systèmes pénitentiaires. (…)

2.4.3 Administration de la justice A. Application de la loi Moscou 1991 (21) Les Etats participants

(21.1) — prendront toutes les mesures nécessaires pour assurer que les responsables de l’application des lois, lorsqu’ils exécutent leur mission de maintien de l’ordre, n’agissent que dans l’intérêt public, pour répondre à une nécessité précise et poursuivre un objec- tif légitime, et utilisent des moyens qui soient proportionnés aux circonstances et n’ex- cèdent pas les nécessités de leur tâche ;

(21.2) — feront en sorte que les opérations de maintien de l’ordre soient soumises à un contrôle juridictionnel, que les responsables du maintien de l’ordre aient à rendre compte de leurs actes et que les victimes d’actes commis en violation des engagements énoncés plus haut aient la possibilité de demander réparation en vertu du droit interne.

(22) Les Etats participants prendront les mesures voulues pour que soient inscrites dans les programmes de formation des fonctionnaires chargés de l’application des lois l’édu- cation et l’information concernant l’interdiction de l’usage abusif de la force par ces fonctionnaires, ainsi que les codes de conduite internationaux et nationaux correspon- dants.

Budapest 1994 (Décisions : IV. Code de conduite relatif aux aspects politico-militaires de la sécurité) 37. Les Etats participants n’utiliseront pas leurs forces armées pour limiter l’exercice pacifique et légal des droits fondamentaux et des droits civiques par des personnes agis- sant à titre individuel ou au nom de groupes ni pour priver ces personnes de leur iden- tité nationale, religieuse, culturelle, linguistique ou ethnique.

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Istanbul 1999 (Charte de sécurité européenne : IV. Nos instruments communs) 45. (…) L’OSCE contribuera aussi, conjointement avec d’autres organisations internatio- nales, à la création d’un cadre politique et juridique permettant à la police de s’acquitter de ses tâches conformément aux principes démocratiques et à l’état de droit.

Bucarest 2001 (Décisions : Décision No. 9 sur les activités relatives à la police) Le Conseil ministériel,

(…)

Affirmant qu’une police efficace est indispensable pour le respect de l’état de droit et la défense des institutions démocratiques ;

(…)

1. Convient que, lors de l’élaboration de plans pour des activités de l’OSCE relatives à la police (…) l’OSCE :

(…)

• étudiera et développera le rôle de la formation de la police, notamment de la forma- tion d’une police intégrée, dans la création de services de police qui puissent jouir de la confiance de toute la population, et en tant que mesure de renforcement de la confiance ;

(…)

B. Traitement des personnes privées de liberté Vienne 1989 (Questions relatives à la sécurité en Europe : Principes) (23) Les Etats participants

(23.1) — veilleront à ce que nul ne fasse l’objet d’une arrestation, d’une détention ou d’un exil arbitraires ;

(23.2) — veilleront à ce que toutes les personnes détenues ou incarcérées soient traitées avec humanité et avec le respect inhérent à la dignité de la personne humaine ;

(23.3) — respecteront l’Ensemble de règles minima des Nations Unies pour le traite- ment des détenus, ainsi que le Code de conduite de l’ONU pour les responsables de l’ap- plication des lois ;

(23.4) — interdiront la torture et les autres peines ou traitements cruels, inhumains ou dégradants, et prendront des mesures efficaces sur les plans législatif, administratif, judiciaire et autres pour prévenir et réprimer de telles pratiques ;

(23.5) — envisageront d’adhérer à la Convention contre la torture et autres peines ou traitements cruels, inhumains ou dégradants, s’ils ne l’ont pas encore fait ;

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(23.6) — protégeront les personnes contre toute pratique psychiatrique ou autres prati- ques médicales qui violent les droits de l’homme et les libertés fondamentales, et pren- dront des mesures efficaces pour prévenir et réprimer de telles pratiques.

(24) (…) Dans les Etats participants où [la peine de mort] ne l’a pas été [abolie], cette peine ne peut être prononcée que pour les crimes les plus graves, conformément à la légis­lation qui était en vigueur au moment où le crime a été commis et qui ne doit pas être contraire à leurs engagements internationaux. (…)

Moscou 1991 23) Les Etats participants veilleront à ce que toutes les personnes privées de libertés soient traitées avec humanité et avec le respect dû à la dignité de la personne humaine et appliqueront les normes internationales reconnues relatives à l’administration de la justice et au respect des droits de l’homme dans la personne du détenu.

(23.1) Les Etats participants feront en sorte que

i) nul ne soit privé de sa liberté si ce n’est pour des motifs et selon des procédures pré- vus par la loi ;

ii) toute personne qui aura été arrêtée soit informée dans le plus court délai et dans une langue qu’elle comprenne des raisons de son arrestation et de toute accusation portée contre elle ;

iii) toute personne qui aura été privée de sa liberté soit informée sans délai de ses droits en vertu de la législation nationale ;

iv) toute personne arrêtée ou détenue ait le droit d’être traduite rapidement devant un magistrat ou toute autre personne légalement habilitée à statuer sur la légalité de son arrestation ou de sa détention, et soit relâchée sans délai s’il s’avère qu’une telle arresta- tion ou détention étaient illégales ;

v) tout inculpé ait le droit de se défendre lui-même ou d’avoir l’assistance d’un défenseur de son choix et, s’il n’a pas les moyens de rémunérer un défenseur, puisse être assisté gratuitement par un avocat d’office lorsque les intérêts de la justice l’exigent ;

vi) toute personne, arrêtée ou détenue, ait le droit d’informer – ou de demander à l’auto- rité compétente d’informer – sans délai excessif les personnes de son choix de son arrestation, de sa détention, de son emprisonnement et du lieu où elle se trouve ; toute restriction à l’exercice de ce droit sera prévue par la loi et sera conforme aux normes internationales ;

vii) des mesures efficaces soient adoptées, si tel n’est pas le cas, pour veiller à ce que les autorités chargées de l’application des lois ne tirent indûment profit de la situation d’une personne détenue ou emprisonnée pour lui extorquer des aveux, la contraindre à s’accu- ser de toute autre manière ou à témoigner contre un tiers ;

104 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Règles de l’État de droit

viii) la durée d’un interrogatoire et les intervalles entre les interrogatoires soient consi- gnés et certifiés conformément à la législation nationale ;

ix) tout détenu – ou son conseil – ait le droit de présenter une requête ou de déposer une plainte au sujet de son traitement, en particulier dans le cas où il aura été victime de tortures ou autres traitements cruels, inhumains ou dégradants, auprès de l’admi- nistration du lieu de détention et des autorités supérieures ainsi que, au besoin, auprès des autorités ayant compétence pour procéder à un réexamen ou pour décider de répa- rations ;

x) une telle demande ou plainte soit examinée rapidement et qu’il y soit donné suite sans retard excessif ; si la demande ou la plainte est rejetée, ou en cas de retard exces- sif, le plaignant aura la faculté d’en saisir l’autorité judiciaire ou toute autre autorité ; aucune personne détenue ou emprisonnée ni aucun plaignant ne subira de préjudice pour avoir formulé une requête ou déposé une plainte ;

xi) toute personne illégalement arrêtée ou détenue ait un droit, garanti par la loi, de demander réparation.

(23.2) Les Etats participants

i) s’efforceront de prendre des mesures, si besoin est, pour améliorer les conditions des personnes détenues ou emprisonnées ;

ii) accorderont une attention particulière à la question des peines de substitution.

2.4.4 Obéissance aux obligations internationales Helsinki 1975 (Questions relatives à la sécurité en Europe : 1. (a) Déclaration sur les principes régissant les relations mutuelles des Etats participants ; Principes X) X. Exécution de bonne foi des obligations assumées conformément au droit inter- national Les Etats participants doivent s’acquitter de bonne foi des obligations qui leur incom- bent en vertu du droit international, tant des obligations qui découlent des principes et règles généralement reconnus du droit international que des obliga­tions résultant de traités ou autres accords, en conformité avec le droit internatio­nal, auxquels ils sont parties.

Dans l’exercice de leurs droits souverains, dont le droit de déterminer leurs lois et règle- ments, ils se conforment à leurs obligations juridiques en droit interna­tional ; en outre, ils tiennent dûment compte des dispositions de l’Acte final de la Conférence sur la sécu- rité et la coopération en Europe et les appliquent.

Les Etats participants confirment qu’en cas de conflit entre les obligations des membres des Nations Unies en vertu de la Charte des Nations Unies et leurs obligations en vertu de tout traité ou autre accord international, leurs obligations en vertu de la Charte pré- vaudront, conformément à l’article 103 de la Charte des Nations Unies.

Les engagements de la dimension humaine de l’OSCE 105 3. Engagements relatifs aux droits de l’homme applicables à tout

3.1 Droits civils et politiques

3.1.1 Provisions générales Helsinki 1975 (Questions relatives à la sécurité en Europe : 1. (a) Déclaration sur les principes régissant les relations mutuelles des Etats participants ; Principes VII) VII. Respect des droits de l’homme et des libertés fondamentales, y compris la liberté de pensée, de conscience, de religion ou de conviction (…)

[Les Etats participants] favorisent et encouragent l’exercice effectif des libertés et droits civils, politiques (…) et autres qui découlent tous de la dignité inhérente à la personne humaine et qui sont essentiels à son épanouisse­ment libre et intégral.

Madrid 1983 (Questions relatives à la sécurité en Europe : Principes) De même, [Les Etats participants] se déclarent résolus à développer leurs lois et règle- ments dans le domaine des droits civils, politiques (…) et des autres droits de l’homme et des libertés fondamentales ; ils soulignent également leur détermination d’assurer l’exer- cice effectif de ces droits et libertés.

Vienne 1989 (Questions relatives à la sécurité en Europe : Principes) (12) (…) [Les Etats participants] reconnaissent que les libertés et droits civils, politiques (…) et autres, sont tous d’une importance capitale et doivent être pleinement mis en œuvre par tous les moyens appropriés.

(13) A cet égard,

(…)

Les engagements de la dimension humaine de l’OSCE 107 Engagements relatifs aux droits de l’homme applicables à tout Pa rt i e II

(13.2) — ils envisageront d’adhérer, s’ils ne 1’ont pas encore fait, aux instruments sui- vants : Pacte international relatif aux droits civils et politiques, (…) Protocole facultatif se rapportant au Pacte international relatif aux droits civils et politiques, et autres ins- truments internationaux pertinents ;

(…)

3.1.2 Droit à la vie/abolition de la peine de mort Vienne 1989 (Questions relatives à la sécurité en Europe : Principes) (24) S’agissant de la question de la peine de mort, les Etats participants notent que, dans un certain nombre d’entre eux, la peine capitale a été abolie. Dans les Etats participants où elle ne l’a pas été, cette peine ne peut être prononcée que pour les crimes les plus graves, conformément à la légis­lation qui était en vigueur au moment où le crime a été commis et qui ne doit pas être contraire à leurs engagements internationaux. La ques- tion de la peine de mort restera à l’étude. A cet égard, les Etats participants coopéreront au sein des organisations compétentes.

Copenhague 1990 (17) Les Etats participants

(…)

(17.2) — rappellent, dans ce contexte, l’adoption par l’Assemblée générale des Nations Unies le 15 décembre 1989, du deuxième Protocole facultatif se rapportant au Pacte international relatif aux droits civils et politiques visant à abolir la peine de mort ;

(17.3) — notent les restrictions et les garanties concernant l’application de la peine de mort qui ont été adoptées par la communauté internationale, en particulier l’article 6 du Pacte international relatif aux droits civils et politiques ;

(17.4) — notent les dispositions du sixième Protocole à la Convention européenne de sauvegarde des droits de l’homme et des libertés fondamentales, concernant l’abolition de la peine de mort ;

(17.5) — notent les récentes mesures prises par un certain nombre d’Etats participants en vue d’abolir la peine de mort ;

(17.6) — notent les activités menées par plusieurs organisations non gouvernementales concernant la question de la peine de mort ;

(17.7) — échangeront, dans le cadre de la Conférence sur la dimension humaine, des informations sur la question de la peine de mort, et maintiendront cette question à l’étude ;

(17.8) — rendront publiques les informations concernant l’application de la peine de mort.

108 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Droits civils et politiques

3.1.3 Interdiction de la torture et autres peines ou traitements cruels, inhumains ou dégradants Vienne 1989 (Questions relatives à la sécurité en Europe : Principes) (23) Les Etats participants

(…)

(23.2) — veilleront à ce que toutes les personnes détenues ou incarcérées soient traitées avec humanité et avec le respect inhérent à la dignité de la personne humaine ;

(23.3) — respecteront l’Ensemble de règles minima des Nations Unies pour le traite- ment des détenus, ainsi que le Code de conduite de l’ONU pour les responsables de l’ap- plication des lois ;

(23.4) — interdiront la torture et les autres peines ou traitements cruels, inhumains ou dégradants, et prendront des mesures efficaces sur les plans législatif, administratif, judiciaire et autres pour prévenir et réprimer de telles pratiques ;

(23.5) — envisageront d’adhérer à la Convention contre la torture et autres peines ou traitements cruels, inhumains ou dégradants, s’ils ne l’ont pas encore fait ;

(23.6) — protégeront les personnes contre toute pratique psychiatrique ou autres prati- ques médicales qui violent les droits de l’homme et les libertés fondamentales, et pren- dront des mesures efficaces pour prévenir et réprimer de telles pratiques.

Copenhague 1990 (16) Les Etats participants

(…)

(16.2) — ont l’intention d’envisager d’urgence d’adhérer à la Convention contre la tor- ture et les autres peines ou traitements cruels, inhumains ou dégradants, s’ils ne l’ont déjà fait, ainsi que de reconnaître la compétence de la Commission contre la torture en vertu des articles 21 et 22 de la Convention et de retirer les réserves concernant la com- pétence de la Commission en vertu de l’article 20 ;

(16.3) — soulignent qu’aucune circonstance exceptionnelle quelle qu’elle soit, qu’il s’agisse d’un état de guerre ou d’une menace de guerre, d’instabilité politique intérieure, ou de tout autre état d’urgence, ne peut être invoquée pour justifier la torture ;

(16.4) — assureront que l’éducation et l’information concernant l’interdiction de la tor- ture font partie intégrante du programme de formation des responsables de l’applica- tion de la loi, civils ou militaires, du personnel médical, des fonctionnaires et autres per- sonnes qui peuvent participer à la garde, à l’interrogatoire ou au traitement de tout indi- vidu soumis à une forme quelconque d’arrestation, de détention ou d’emprisonnement ;

(16.5) — passeront systématiquement en revue, aux fins de prévenir tout cas de tor- ture, les règles, les instructions, les méthodes et les pratiques concernant l’interroga-

Les engagements de la dimension humaine de l’OSCE 109 Engagements relatifs aux droits de l’homme applicables à tout Pa rt i e II

toire, ainsi que les dispositions applicables à la garde et au traitement des personnes soumises à toutes formes d’arrestation, de détention ou d’emprisonnement sur un terri- toire placé sous leur juridiction ;

(16.6) — se saisiront en priorité, aux fins d’examen et d’adoption de mesures appropriées conformément aux dispositions et procédures convenues pour la mise en œuvre effec- tive des engagements relatifs à la dimension humaine de la CSCE, de tous cas de torture et d’autres peines ou traitements inhumains ou dégradants portés à leur connaissance par des voies officielles ou par toute autre source fiable d’information ;

(16.7) — agiront dans l’idée que la sauvegarde et la garantie de la vie et de la sécurité de tout individu soumis à une forme quelconque de torture ou de peines ou traitements inhumains ou dégradants sera l’unique critère pour déterminer l’urgence et les priorités à observer dans l’adoption de mesures appropriées ; en conséquence, l’examen de tous cas de torture et d’autres peines ou traitements inhumains ou dégradants dans le cadre de tout autre organe ou mécanisme international ne peut être invoqué comme prétexte pour s’abstenir de procéder à un examen et de prendre les mesures appropriées confor- mément aux dispositions et procédures convenues pour la mise en œuvre effective des engagements relatifs à la dimension humaine de la CSCE.

Paris 1990 (Une nouvelle ère de démocratie, de paix et d’unité) Nous affirmons que, sans discrimination,

(…)

nul ne sera soumis :

(…)

à la torture ou à tout autre traitement ou châtiment cruel, inhumain ou dégradant ;

(…)

Moscou 1991 (23.1) Les Etats participants feront en sorte que

(…)

vii) des mesures efficaces soient adoptées, si tel n’est pas le cas, pour veiller à ce que les autorités chargées de l’application des lois ne tirent indûment profit de la situation d’une personne détenue ou emprisonnée pour lui extorquer des aveux, la contraindre à s’accu- ser de toute autre manière ou à témoigner contre un tiers ;

viii) la durée d’un interrogatoire et les intervalles entre les interrogatoires soient consi- gnés et certifiés conformément à la législation nationale ;

ix) tout détenu – ou son conseil – ait le droit de présenter une requête ou de déposer une plainte au sujet de son traitement, en particulier dans le cas où il aura été victime

110 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Droits civils et politiques

de tortures ou autres traitements cruels, inhumains ou dégradants, auprès de l’admi- nistration du lieu de détention et des autorités supérieures ainsi que, au besoin, auprès des autorités ayant compétence pour procéder à un réexamen ou pour décider de répa- rations ;

x) une telle demande ou plainte soit examinée rapidement et qu’il y soit donné suite sans retard excessif ; si la demande ou la plainte est rejetée, ou en cas de retard exces- sif, le plaignant aura la faculté d’en saisir l’autorité judiciaire ou toute autre autorité ; aucune personne détenue ou emprisonnée ni aucun plaignant ne subira de préjudice pour avoir formulé une requête ou déposé une plainte ;

(…)

Budapest 1994 (Décisions : VIII. La dimension humaine) 20. Les Etats participants condamnent vigoureusement la torture sous toutes ses for- mes qu’ils considèrent comme l’une des plus flagrantes violations des droits de l’homme et de la dignité humaine. Ils s’engagent à ne rien négliger pour éliminer la torture. Ils reconnaissent l’importance, à cet égard, des normes internationales, telles qu’elles sont énoncées dans les traités internationaux sur les droits de l’homme, en particulier la Convention des Nations Unies contre la torture et autres peines ou traitements cruels, inhumains ou dégradants et la Convention européenne pour la prévention de la tor- ture et des peines ou traitements inhumains ou dégradants. Ils reconnaissent également l’importance d’une législation nationale visant à mettre fin aux actes de torture. Ils s’en- gagent à enquêter sur tous les cas de torture signalés et à en poursuivre les auteurs. Ils s’engagent également à inclure dans leurs programmes d’éducation et de formation pour les membres des services chargés de l’application des lois et des services de police des dispositions spécifiques en vue de mettre fin aux actes de torture. Ils considèrent qu’un échange d’informations sur ce problème est une condition préalable essentielle. Les Etats participants devraient avoir la possibilité d’obtenir de telles informations. La CSCE devrait dans ce contexte également mettre à profit l’expérience du Rapporteur spécial chargé d’examiner la question de la torture dont le poste a été créé par la Com- mission des droits de l’homme des Nations Unies et faire usage des informations four- nies par les ONG.

Istanbul 1999 (Charte de sécurité européenne : III. Notre réponse commune) 21. Nous sommes résolus à éliminer la torture et les autres peines ou traitements cruels, inhumains ou dégradants dans tout l’espace de l’OSCE. A cette fin, nous encouragerons l’adoption de lois fournissant des garanties et voies de recours sur le plan de la procé- dure et du fond pour combattre ces pratiques. Nous aiderons les victimes et coopére- rons, le cas échéant, avec les organisations internationales et organisations non gouver- nementales intéressées.

Les engagements de la dimension humaine de l’OSCE 111 Engagements relatifs aux droits de l’homme applicables à tout Pa rt i e II

3.1.4 Droit de ne pas être arrêté ou détenu arbitrairement Voir aussi : á Partie II. 2.4.1 : Règle de l’État de droit > Provisions générales á Partie II. 2.4.3 B : Traitement des personnes privées de liberté á Partie II. 3.1.3 : Interdiction de la torture et autres peines ou traitements cruels, inhumains ou dégradants á Partie II. 3.1.5 : Droit à un procès équitable á Partie II. 3.1.6 : Droit à des recours efficaces

Vienne 1989 (Questions relatives à la sécurité en Europe: Principes) (23) Les Etats participants

(23.1) — veilleront à ce que nul ne fasse l’objet d’une arrestation, d’une détention ou d’un exil arbitraires ;

(…)

Copenhague 1990 (5.15) — toute personne arrêtée ou détenue pour une infraction pénale a le droit d’être aussitôt traduite devant un juge ou un autre magistrat habilité par la loi à exercer une telle fonction, qui statuera sur la légalité de son arrestation ou de sa détention ;

(…)

Moscou 1991 (23.1) Les Etats participants feront en sorte que

i) nul ne soit privé de sa liberté si ce n’est pour des motifs et selon des procédures pré- vus par la loi ;

ii) toute personne qui aura été arrêtée soit informée dans le plus court délai et dans une langue qu’elle comprenne des raisons de son arrestation et de toute accusation portée contre elle ;

iii) toute personne qui aura été privée de sa liberté soit informée sans délai de ses droits en vertu de la législation nationale ;

iv) toute personne arrêtée ou détenue ait le droit d’être traduite rapidement devant un magistrat ou toute autre personne légalement habilitée à statuer sur la légalité de son arrestation ou de sa détention, et soit relâchée sans délai s’il s’avère qu’une telle arresta- tion ou détention étaient illégales ;

v) tout inculpé ait le droit de se défendre lui-même ou d’avoir l’assistance d’un défenseur de son choix et, s’il n’a pas les moyens de rémunérer un défenseur, puisse être assisté gra- tuitement par un avocat d’office lorsque les intérêts de la justice l’exigent ;

112 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Droits civils et politiques

vi) toute personne, arrêtée ou détenue, ait le droit d’informer – ou de demander à l’auto- rité compétente d’informer – sans délai excessif les personnes de son choix de son arrestation, de sa détention, de son emprisonnement et du lieu où elle se trouve ; toute restriction à l’exercice de ce droit sera prévue par la loi et sera conforme aux normes internationales ;

vii) des mesures efficaces soient adoptées, si tel n’est pas le cas, pour veiller à ce que les autorités chargées de l’application des lois ne tirent indûment profit de la situation d’une personne détenue ou emprisonnée pour lui extorquer des aveux, la contraindre à s’accu- ser de toute autre manière ou à témoigner contre un tiers ;

viii) la durée d’un interrogatoire et les intervalles entre les interrogatoires soient consi- gnés et certifiés conformément à la législation nationale ;

ix) tout détenu – ou son conseil – ait le droit de présenter une requête ou de déposer une plainte au sujet de son traitement, en particulier dans le cas où il aura été victime de tortures ou autres traitements cruels, inhumains ou dégradants, auprès de l’admi- nistration du lieu de détention et des autorités supérieures ainsi que, au besoin, auprès des autorités ayant compétence pour procéder à un réexamen ou pour décider de répa- rations ;

x) une telle demande ou plainte soit examinée rapidement et qu’il y soit donné suite sans retard excessif ; si la demande ou la plainte est rejetée, ou en cas de retard exces- sif, le plaignant aura la faculté d’en saisir l’autorité judiciaire ou toute autre autorité ; aucune personne détenue ou emprisonnée ni aucun plaignant ne subira de préjudice pour avoir formulé une requête ou déposé une plainte ;

xi) toute personne illégalement arrêtée ou détenue ait un droit, garanti par la loi, de demander réparation.

3.1.5 Droit à un procès équitable Voir aussi : á Partie II. 2.4 : Règle de l’État de droit á Partie II. 3.1.4 : Droit de ne pas être arrêté ou détenu arbitrairement á Partie II. 3.1.6 : Droit à des recours efficaces

Vienne 1989 (Questions relatives à la sécurité en Europe: Principes) (13.9) — [Les Etats participants] veilleront à ce que des recours effectifs et une informa- tion complète au sujet de ceux‑ci soient à la disposition des personnes qui font valoir qu’il y a eu violation des droits de l’homme et des libertés fondamentales à leur endroit ; entre autres, ils leur donneront effec­tivement la possibilité de se prévaloir :

• du droit de chacun de présenter un recours devant des organes exécutifs, législatifs, judiciaires ou administratifs ;

Les engagements de la dimension humaine de l’OSCE 113 Engagements relatifs aux droits de l’homme applicables à tout Pa rt i e II

• du droit d’être entendues équitablement et publiquement, dans un délai raisonnable, par un tribunal indépendant et impartial, et entre autres d’y invoquer des arguments juri­diques et d’y être représentées par l’avocat de leur choix ;

• du droit d’être promptement et officiellement informées de la suite donnée a tout appel, y compris des motifs juridiques sur lesquels se fonde la décision. Cette infor- mation sera communiquée en règle générale par écrit et, en tout état de cause, d’une façon qui permette à l’intéressé d’utiliser effectivement d’autres voies de recours dis- ponibles.

Copenhague 1990 (5) [Les Etats participants] déclarent solennellement que, parmi les principes de la jus- tice essentiels à l’expression complète de la dignité inhérente à la personne humaine et des droits égaux et inaliénables de tous les êtres humains, il faut mentionner les sui- vants :

(…)

(5.12) — l’indépendance des juges et le fonctionnement impartial de la justice seront assurés ;

(5.13) — l’indépendance des avocats sera reconnue et protégée, notamment quant aux conditions de recrutement et d’exercice de leur activité ;

(5.14) — les règles relatives à la procédure pénale comporteront une définition claire des compétences concernant les poursuites et les actes les précédant et les accompagnant ;

(5.15) — toute personne arrêtée ou détenue pour une infraction pénale a le droit d’être aussitôt traduite devant un juge ou un autre magistrat habilité par la loi à exercer une telle fonction, qui statuera sur la légalité de son arrestation ou de sa détention ;

(5.16) — toute personne a droit à ce que sa cause soit entendue équitablement et publi- quement par un tribunal compétent, indépendant et impartial, établi par la loi, qui déci- dera soit du bien fondé de toute accusation en matière pénale dirigée contre elle, soit des contestations sur ses droits et obligations de caractère civil ;

(5.17) — toute personne poursuivie aura le droit de se défendre elle‑même ou d’avoir rapidement l’assistance d’un défenseur de son choix ou, si elle n’a pas les moyens de rémunérer un défenseur, de pouvoir être assistée gratuitement par un avocat d’office, lorsque les intérêts de la justice l’exigent ;

(5.18) — nul ne peut être accusé d’une infraction pénale, jugé ou reconnu coupable à moins que cette infraction ne soit prévue par une loi qui en définit les éléments avec clarté et précision ;

(5.19) — toute personne est présumée innocente aussi longtemps que sa culpabilité n’est pas prouvée conformément à la loi ;

114 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Droits civils et politiques

(…)

(12) Les Etats participants, désireux d’assurer une meilleure transparence dans la mise en œuvre des engagements souscrits au titre de la dimension humaine de la CSCE dans le Document de clôture de Vienne, décident d’admettre, à titre de mesure de confiance, la présence d’observateurs envoyés par des Etats participants et de représentants d’or- ganisations non gouvernementales ainsi que d’autres personnes intéressées lors de pro- cédures engagées devant des tribunaux, comme prévu par la législation nationale et le droit international ; il est entendu que le huis clos ne peut être prononcé que dans les circonstances prévues par la loi et conformément aux obligations découlant du droit international et aux engagements internationaux.

3.1.6 Droit à des recours efficaces Voir aussi : á Partie II. 2.4 : Règle de l’État de droit á Partie II. 3.1.4 : Droit de ne pas être arrêté ou détenu arbitrairement á Partie II. 3.1.5 : Droit à un procès équitable

Vienne 1989 (Questions relatives à la sécurité en Europe : Principes) (13.9) — [Les Etats participants] veilleront à ce que des recours effectifs et une informa- tion complète au sujet de ceux‑ci soient à la disposition des personnes qui font valoir qu’il y a eu violation des droits de l’homme et des libertés fondamentales à leur endroit ; entre autres, ils leur donneront effec­tivement la possibilité de se prévaloir :

• du droit de chacun de présenter un recours devant des organes exécutifs, législatifs, judiciaires ou administratif ;

• du droit d’être entendues équitablement et publiquement, dans un délai raisonnable, par un tribunal indépendant et impartial, et entre autres d’y invoquer des arguments juri­diques et d’y être représentées par l’avocat de leur choix ;

• du droit d’être promptement et officiellement informées de la suite donnée a tout appel, y compris des motifs juridiques sur lesquels se fonde la décision. Cette infor- mation sera communiquée en règle générale par écrit et, en tout état de cause, d’une façon qui permette à l’intéressé d’utiliser effectivement d’autres voies de recours dis- ponibles.

Copenhague 1990 (5) [Les Etats participants] déclarent solennellement que, parmi les principes de la jus- tice essentiels à l’expression complète de la dignité inhérente à la personne humaine et des droits égaux et inaliénables de tous les êtres humains, il faut mentionner les sui- vants :

(…)

Les engagements de la dimension humaine de l’OSCE 115 Engagements relatifs aux droits de l’homme applicables à tout Pa rt i e II

(5.10) — tout individu disposera d’un recours effectif contre les décisions administrati- ves de façon à garantir le respect des droits fondamentaux et à assurer la sécurité juri- dique ;

(5.11) — les décisions administratives à l’encontre d’une personne doivent être pleine- ment motivées et indiquer en général les voies de recours existantes ;

(…)

(5.21) — afin de compléter les recours internes et de mieux garantir le respect par les Etats participants des obligations internationales souscrites par eux, les Etats partici- pants envisageront d’adhérer à une convention internationale de caractère régional ou universel relative à la protection des droits de l’homme, tels la Convention européenne des droits de l’homme ou le Protocole facultatif se rapportant au Pacte international relatif aux droits civils et politiques, qui prévoient des procédures de recours individuels devant des instances internationales.

(…)

(11) Les Etats participants affirment en outre qu’en cas de violations alléguées des droits de l’homme et des libertés fondamentales, les recours disponibles comprennent :

(11.1) — le droit de toute personne de demander et de recevoir une assistance juridique appropriée ;

(11.2) — le droit de toute personne de demander et de recevoir l’aide d’autrui pour défendre les droits de l’homme et les libertés fondamentales, ainsi que d’aider d’autres personnes à défendre ces droits et libertés ;

(11.3) — le droit des personnes ou des groupes agissant en leur nom de communiquer avec des organismes internationaux ayant compétence pour recevoir et examiner des informations concernant des atteintes alléguées aux droits de l’homme.

(…)

(40.5) — [Les Etats participants] reconnaîtront le droit qu’a toute personne de disposer effectivement d’un recours, et ils s’efforceront de reconnaître, conformément à la légis- lation nationale, le droit qu’ont les personnes et groupes de personnes concernées de déposer des plaintes contre les actes de discrimination, y compris les actes racistes et xénophobes, et de soutenir de telles plaintes ;

Paris 1990 (Une nouvelle ère de démocratie, de paix et d’unité) Nous veillerons à ce que chacun jouisse de recours effectifs, sur le plan national ou international, contre toute violation de ses droits.

116 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Droits civils et politiques

Moscou 1991 (18.2) Tout individu disposera d’un recours effectif contre les décisions administratives de façon à garantir le respect des droits fondamentaux et à assurer la sécurité juridique.

(18.3) A cette même fin, des voies de recours contre les règlements administratifs seront ouvertes à toute personne à qui ces règlements auraient causé un préjudice.

(18.4) Les Etats participants veilleront à prévoir un recours juridictionnel contre de tels règlements et décisions.

3.1.7 Objection de conscience et service alternatif Copenhague 1990 (18) Les Etats participants

(18.1) — notent que la Commission des droits de l’homme des Nations Unies a reconnu le droit de chacun d’être objecteur de conscience ;

(18.2) — prennent note des mesures prises récemment par plusieurs Etats participants pour permettre l’exemption du service militaire obligatoire pour les individus qui se déclarent objecteurs de conscience ;

(18.3) — prennent note des activités de plusieurs organisations non gouvernementales sur la question de l’objection de conscience dans le cas de service militaire obligatoire ;

(18.4) — conviennent d’examiner la possibilité de mettre en place, quand cela n’a pas encore été fait, un service sous d’autres formes qui soient compatibles avec les motifs invoqués par l’objecteur de conscience, ces formes de service étant en principe de nature non belligérante ou civile, d’intérêt public et ne présentant aucun caractère répressif ;

(18.5) — rendront publiques des informations sur cette question ;

(18.6) — poursuivront l’examen, dans le cadre de la Conférence sur la dimension humaine, des questions pertinentes concernant l’exemption du service militaire obli- gatoire, là où il existe, pour les individus qui se déclarent objecteurs de conscience, et échangeront des informations sur ces questions.

Budapest 1994 (Décisions : IV. Code de conduite relatif aux aspects politico-militaires de la sécurité) 28. Les Etats participants feront figurer dans leurs lois ou autres textes pertinents les droits et devoirs des membres des forces armées. Ils étudieront la possibilité de dispen- ses ou de formules de remplacement du service militaire.

Les engagements de la dimension humaine de l’OSCE 117 Engagements relatifs aux droits de l’homme applicables à tout Pa rt i e II

3.1.8 Liberté de pensée, de conscience, de religion ou de conviction Helsinki 1975 (Questions relatives à la sécurité en Europe : 1. (a) Déclaration sur les principes régissant les relations mutuelles des Etats participants ; Principe VII) VII. Respect des droits de l’homme et des libertés fondamentales, y compris la liberté de pensée, de conscience, de religion ou de conviction Les Etats participants respectent les droits de l’homme et les libertés fonda­mentales, y compris la liberté de pensée, de conscience, de religion ou de convic­tion pour tous, sans distinction de race, de sexe, de langue ou de religion.

(…)

Dans ce cadre, les Etats participants reconnaissent et respectent la liberté de l’individu de professer et pratiquer, seul ou en commun, une religion ou une conviction en agis- sant selon les impératifs de sa propre conscience.

Helsinki 1975 (Coopération dans les domaines humanitaires et autres) [Les Etats participants] confirment que les cultes, institutions et organisations religieux, agissant dans le cadre constitutionnel des Etats participants, et leurs représentants peu- vent dans le domaine de leur activité, avoir entre eux des contacts et des rencontres et échanger des informations.

Madrid 1983 (Questions relatives à la sécurité en Europe : Principes) Les Etats participants confirment qu’ils (…) s’accordent à prendre les mesures nécessai- res pour garantir la liberté qu’a l’individu de professer et pratiquer, seul ou en commun, une religion ou une conviction en agissant selon les impératifs de sa propre conscience.

A ce propos, ils consulteront, si besoin est, les cultes ainsi que les institutions et organi- sations religieuses dont l’action s’exerce dans le cadre constitutionnel de leurs pays res- pectifs.

Ils examineront favorablement les demandes formulées par des communautés religieu- ses de croyants pratiquant ou disposés à pratiquer leur foi dans le cadre constitutionnel de leurs Etats, visant à l’octroi du statut prévu dans leur pays à l’intention des cultes et des institutions et organisations religieuses.

Vienne 1989 (Questions relatives à la sécurité en Europe : Principes) (16) Afin d’assurer la liberté de tout un chacun de professer et pratiquer une religion ou une con­viction, les Etats participants, entre autres,

(16.1) — prendront des mesures efficaces pour empêcher et éliminer toute discrimi- nation fondée sur la religion ou la croyance, à l’encontre d’individus ou de commu- nautés, s’agissant de la reconnaissance, de l’exercice et de la jouissance des droits de l’homme et des libertés fon­damentales dans tous les domaines de la vie civile, politi-

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que, économique, sociale et culturelle, et assureront l’égalité effective des croyants et des non‑croyants ;

(16.2) — favoriseront un climat de tolérance et de respect mutuels entre les croyants de communautés différentes, ainsi qu’entre croyants et non‑croyants ;

(16.3) — accorderont, sur leur demande, aux communautés de croyants pratiquant ou s’apprêtant à pratiquer leur foi dans le cadre constitutionnel de leur Etat, la reconnais- sance du statut prévu à leur intention dans leur pays ;

(16.4) — respecteront le droit de ces communautés :

• à établir et entretenir des lieux de culte ou de réunion librement accessibles,

• à s’organiser conformément à leur propre structure hiérarchique et institutionnelle,

• à choisir, nommer et remplacer leur personnel conformément à leurs besoins et règles propres, ainsi qu’à tout arrangement librement conclu entre elles et l’Etat,

• à solliciter et recevoir des contributions volontaires, qu’elles soient financières ou autres ;

(16.5) — engageront des consultations avec les cultes, ainsi qu’avec les institutions et organisations religieuses, pour parvenir à une meilleure compréhension des exigences de la liberté religieuse ;

(16.6) — respecteront le droit de tout un chacun de dispenser et de recevoir une édu- cation religieuse dans la langue de son choix, à titre individuel ou en association avec d’autres ;

(16.7) — respecteront, à cet égard, entre autres, la liberté des parents d’assurer l’éduca- tion religieuse et morale de leurs enfants conformément à leurs propres convictions ;

(16.8) — autoriseront la formation d’un personnel religieux dans des établissements appropriés ;

(16.9) — respecteront le droit de chaque croyant et des communautés de croyants d’ac- quérir, de posséder et d’utiliser des livres sacrés, des publications religieuses dans la langue de leur choix, ainsi que d’autres objets liés à la pratique d’une religion ou d’une conviction ;

(16.10) — autoriseront les cultes, ainsi que les institutions et organisations religieuses, à produire, importer et disséminer publications et objets religieux ;

(16.11) — considéreront favorablement 1’intérêt de communautés de croyants à partici- per au dialogue public, y compris par l’intermédiaire des moyens d’information.

(17) Les Etats participants reconnaissent que l’exercice des droits mentionnés ci‑dessus concernant la liberté religieuse ou de conviction ne peut faire l’objet que des restrictions

Les engagements de la dimension humaine de l’OSCE 119 Engagements relatifs aux droits de l’homme applicables à tout Pa rt i e II

qui sont prévues par la loi et compatibles avec les obligations qu’ils assument conformé- ment au droit international et avec leurs engagements internationaux. Dans leur légis- lation et leur réglementation et dans l’application de celles‑ci, ils assureront l’exercice intégral et effectif de la liberté de pensée, de conscience, de religion ou de conviction.

(…)

Vienne 1989 (Coopération dans les domaines humanitaires et autres) (32) Ils permettront aux croyants, aux cultes et à leurs représentants d’établir et de main- tenir, collec­tivement ou individuellement, des contacts personnels directs, ainsi que des communications entre eux dans leur propre pays et à l’étranger, y compris par des voya- ges, des pèlerinages et la participa­tion à des assemblées et à d’autres manifestations reli- gieuses. Dans ce contexte, et en rapport avec ces contacts et ces manifestations, les inté- ressés seront autorisés à acquérir, recevoir et transporter des publications et des objets religieux liés à la pratique de leur religion ou de leur croyance.

Copenhague 1990 (9) Les Etats participants réaffirment que

(…)

(9.4) — toute personne a droit à la liberté de pensée, de conscience et de religion. Ce droit comprend la liberté de changer de religion ou de conviction et de manifester sa religion ou sa conviction, individuellement ou collectivement, en public ou en privé, par le culte, l’enseignement, les pratiques et l’accomplissement des rites. L’exercice de ces droits ne peut faire l’objet que des limitations prévues par la loi et conformes aux nor- mes internationales communément admises ;

(…)

(32) (…) Les personnes appartenant à des minorités nationales ont le droit d’exprimer, de préserver et de développer en toute liberté leur identité ethnique, culturelle, linguis- tique ou religieuse et de maintenir et de développer leur culture sous toutes ses formes, à l’abri de toutes tentatives d’assimilation contre leur volonté. En particulier, elles ont le droit

(…)

(32.3) — de professer et de pratiquer leur religion, y compris de se procurer, de posséder et d’utiliser des objets religieux, ainsi que de dispenser un enseignement religieux dans leur langue maternelle ;

(…)

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Budapest 1994 (Décisions : VIII. La dimension humaine) 27. Confirmant qu’ils se sont engagés à assurer la liberté de conscience et de religion et à favoriser un climat de tolérance et de respect mutuels entre croyants de différentes confessions aussi bien qu’entre croyants et non‑croyants, ils expriment leur inquiétude au sujet de l’exploitation de la religion à des fins nationalistes agressives.

Maastricht 2003 (Décisions : Décision No. 4/03 sur la tolérance et la non-discrimina- tion) 9. Affirme l’importance de la liberté de pensée, de conscience, de religion ou de convic- tion, et condamne toute discrimination et tout acte de violence, notamment à l’encon- tre de tout groupe religieux ou de tout croyant. S’engage à assurer et à favoriser la liberté de chacun de professer et de pratiquer une religion ou une croyance, seul ou en commu- nauté avec d’autres, si nécessaire par des lois, règlements, pratiques et politiques trans- parents et non discriminatoires. Encourage les Etats participants à solliciter l’assistance du BIDDH et de son groupe consultatif d’experts sur la liberté de religion ou de convic- tion. Souligne qu’il importe de poursuivre et d’intensifier le dialogue entre religions ou croyances afin de favoriser le progrès de la tolérance, du respect et de la compréhension mutuelle ;

3.1.9 Liberté d’association et liberté de réunion pacifique Madrid 1983 (Questions relatives à la sécurité en Europe : Principes) Les Etats participants donneront effet au droit qu’ont les travailleurs de créer librement des syndicats et d’y adhérer, au droit qu’ont les syndicats d’exercer librement leurs acti- vités et aux autres droits qu’énoncent les instruments internationaux pertinents. Ils prennent note du fait que ces droits seront exercés dans le respect des lois de l’Etat et conformément aux obligations de l’Etat en vertu du droit international. Ils favoriseront, selon le cas, les contacts et la communication directs entre lesdits syndicats et entre leurs représentants.

Sofia 1989 (Préambule) Les Etats participants réaffirment qu’ils respectent le droit des personnes, groupes et organisations qui s’occupent des problèmes relatifs à l’environnement d’exprimer libre- ment leurs avis, de s’associer avec d’autres, de s’assembler pacifiquement, ainsi que d’ob- tenir, publier et diffuser des informations relatives à ces problèmes, sans se heurter à des obstacles juridiques et administratifs incompatibles avec les dispositions de la CSCE. Ces personnes, groupes et organisations ont le droit de participer à des débats publics sur les problèmes d’environnement, ainsi que d’établir et de garder des contacts directs et indépendants aux niveaux national et international.

Bonn 1990 (Préambule) Les Etats participants,

(…)

Les engagements de la dimension humaine de l’OSCE 121 Engagements relatifs aux droits de l’homme applicables à tout Pa rt i e II

Reconnaissant le lien qui existe entre le pluralisme politique et les économies de mar- ché et ayant souscrit aux principes concernant :

(…)

• une activité économique qui soutienne en conséquence la dignité humaine, qui (…) ne dénie pas aux travailleurs le droit de créer librement des syndicats indépendants ou d’y adhérer,

(…)

Copenhague 1990 (7.6) [Les Etats participants] respecteront le droit des individus ainsi que des groupes ou groupements de créer, en toute liberté, leurs propres partis ou autres organisations poli- tiques (…).

(…)

(9) Les Etats participants réaffirment que

(…)

(9.2) — toute personne a le droit d’organiser des réunions et des manifestations pacifi- ques. Toute restriction pouvant être apportée à l’exercice de ces droits doit être prévue par la loi et compatible avec les normes internationales communément admises ;

(9.3) — le droit d’association est garanti. Est garanti également le droit de former un syndicat et d’y adhérer librement, sous réserve du droit général dont jouit tout syndi- cat de déterminer ses propres conditions d’adhésion. Ces droits excluent tout contrôle préalable. La liberté d’association des travailleurs, y compris le droit de grève, est garan- tie, sous réserve des limites prévues par la loi et compatibles avec les normes internatio- nales communément admises ;

(…)

10. (…) les Etats participants s’engagent :

(…)

(10.3) — à veiller à ce que toute personne soit autorisée à exercer le droit d’association, y compris le droit effectif de créer des organisations non gouvernementales cherchant à promouvoir et à protéger les droits de l’homme et les libertés fondamentales, notam- ment des syndicats et des groupes de surveillance en matière de droits de l’homme, ainsi que d’adhérer à ces organisations et de participer à leurs activités ;

(…)

(32) (…) Les personnes appartenant à des minorités nationales ont le droit d’exprimer, de préserver et de développer en toute liberté leur identité ethnique, culturelle, linguis-

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tique ou religieuse et de maintenir et de développer leur culture sous toutes ses formes, à l’abri de toutes tentatives d’assimilation contre leur volonté. En particulier, elles ont le droit

(…)

(32.6) — de créer et de maintenir des organisations ou associations dans leur pays, et de participer aux activités d’organisations non gouvernementales internationales. (…)

Paris 1990 (Une nouvelle ère de démocratie, de paix et d’unité) Nous affirmons que, sans discrimination, tout individu a le droit à (…) la liberté d’ex- pression, la liberté d’association et de réunion pacifique (…).

3.1.10 Liberté d’expression, médias et presse libres A. Provisions générales Helsinki 1975 (Coopération dans les domaines humanitaires et autres) Les Etats participants,

Conscients du besoin d’une connaissance et d’une compréhension toujours plus larges des divers aspects de la vie dans les autres Etats participants,

Reconnaissant l’apport de ce processus au développement de la confiance entre peu- ples,

Désireux, avec le développement de la compréhension mutuelle entre les Etats parti- cipants et avec l’amélioration progressive de leurs relations, de continuer de nouveaux efforts en vue d’un progrès dans ce domaine,

Reconnaissant l’importance de la diffusion de l’information en provenance des autres Etats participants et d’une meilleure connaissance de cette information,

(…)

Se fixent comme objectif de faciliter une diffusion plus libre et plus large de l’informa- tion de toute nature, d’encourager la coopération dans le domaine de l’information et l’échange d’informations avec d’autres pays (…)

Vienne 1989 (Coopération dans les domaines humanitaires et autres) (34) (…) [Les Etats participants] veilleront, conformément au Pacte international rela- tif aux droits civils et poli­tiques, à la Déclaration universelle des droits de l’homme et à leurs engagements internationaux pertinents concernant la recherche, la réception et la communication d’informations de toutes sortes, à ce que les individus puissent choisir librement leurs sources d’information. A cet effet, (…)

• ils permettront aux individus, aux institutions et aux organisations—tout en respec- tant les droits relatifs à la propriété intellectuelle, y compris les droits d’auteur—d’ob-

Les engagements de la dimension humaine de l’OSCE 123 Engagements relatifs aux droits de l’homme applicables à tout Pa rt i e II

tenir, de posséder, de reproduire et de diffuser des informations de toutes sortes, quel qu’en soit le support.

A ces fins, ils supprimeront toutes les restrictions inconciliables avec les obligations et engagements précités.

(35) Ils utiliseront toutes les possibilités qu’offrent les moyens modernes de communica- tion, y compris le câble et les satellites, de diffuser plus librement et plus largement des informations de toute nature. Ils encourageront également la coopération et les échan- ges entre leurs institutions, leurs organisations et leurs spécialistes dans le domaine de la technique, et travailleront à l’har­monisation des normes techniques. A cet égard, ils auront présents à l’esprit les effets de ces moyens de communication modernes sur leurs organes d’information.

(36) Ils veilleront dans la pratique à ce que des bulletins officiels d’information puis- sent être distribués librement sur leur territoire par les missions diplomatiques et autres missions officielles, et par les postes consulaires des autres Etats participants.

(…)

(45) Ils veilleront à ce que, dans la pratique, des personnes appartenant aux minorités nationales ou aux cultures régionales sur leur territoire puissent diffuser des informa- tions dans leur langue maternelle, y avoir accès et les échanger.

Sofia 1989 (Préambule) Les Etats participants réaffirment qu’ils respectent le droit des personnes, groupes orga- nisations qui s’occupent des problèmes relatifs à l’environnement d’exprimer libre- ment leurs de s’associer avec d’autres, de s’assembler pacifiquement, ainsi que d’obtenir, publier diffuser des informations relatives à ces problèmes, sans se heurter à des obsta- cles juridiques administratifs incompatibles avec les dispositions de la CSCE. Ces per- sonnes, groupes organisations ont le droit de participer à des débats publics sur les pro- blèmes d’environnement, ainsi d’établir et de garder des contacts directs et indépen- dants aux niveaux national et international.

Copenhague 1990 (7.7) [Les Etats participants] veilleront à ce que la loi et l’ordre public de l’Etat contri- buent à faire en sorte que les campagnes politiques se déroulent dans un climat d’équité et de liberté excluant toute pression administrative, violence ou intimidation qui inter- dirait aux partis et aux candidats d’exposer librement leurs opinions et leurs qualités, ou empêcherait les électeurs d’en prendre connaissance et d’en débattre (…) ;

(…)

(9.1) [Les Etats participants] toute personne a droit à la liberté d’expression, y compris le droit de communiquer. Ce droit comprend la liberté d’exprimer des opinions ainsi que de recevoir et de transmettre des informations et des idées, sans ingérence de la part

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des autorités publiques et sans considération de frontières. L’exercice de ce droit ne peut faire l’objet de restrictions que si ces restrictions sont prévues par la loi et compatibles avec les normes internationales communément admises. En particulier, aucune limita- tion ne doit être apportée à l’accès et à l’utilisation des moyens de reproduction de docu- ments de toute nature, sous réserve, toutefois, de respecter les droits relatifs à la pro- priété intellectuelle, y compris les droits d’auteur ;

(…)

(10.1) — à respecter le droit de chacun, à titre individuel ou en association avec d’autres, de demander, recevoir et communiquer librement des opinions et des informations concernant les droits de l’homme et les libertés et ces informations ;

(10.2) — à respecter les droits de chacun, à titre individuel ou en association avec d’autres, d’étudier et d’examiner comment les droits de l’homme et les libertés fon- damentales sont respectés et d’élaborer et d’examiner des idées propres à améliorer la protection des droits de l’homme ainsi que des moyens plus efficaces pour garantir leur conformité avec les normes internationales communément admises en matière de droits de l’homme ;

(…)

(32) (…) Les personnes appartenant à des minorités nationales ont le droit d’exprimer, de préserver et de développer en toute liberté leur identité ethnique, culturelle, linguis- tique ou religieuse et de maintenir et de développer leur culture sous toutes ses formes, à l’abri de toutes tentatives d’assimilation contre leur volonté. (…)

Budapest 1994 (Décisions : VIII. La dimension humaine) 36. Les Etats participants réaffirment que la liberté d’expression est un droit de l’homme fondamental et un élément essentiel de toute société démocratique. (…)

Istanbul 1999 (Charte de sécurité européenne : III. Notre réponse commune) 26. Nous réaffirmons l’importance (…) de la libre circulation des informations tout comme de l’accès du public à l’information. Nous nous engageons à prendre toutes les mesures nécessaires pour réunir les conditions indispensables (…) à la circulation sans entraves de l’information au‑delà des frontières et à l’intérieur des Etats (…).

B. Liberté des médias et conditions de travail des journalistes Voir aussi : á Partie I. 2.3.4 C : Représentant de l’OSCE pour la liberté des médias

Helsinki 1975 (Coopération dans les domaines humanitaires et autres) (…) Reconnaissant l’importance de la diffusion de l’information en provenance des autres Etats participants et d’une meilleure connaissance de cette information,

Les engagements de la dimension humaine de l’OSCE 125 Engagements relatifs aux droits de l’homme applicables à tout Pa rt i e II

Soulignant en conséquence le rôle essentiel et l’influence de la presse, de la radio, de la télévision, du cinéma et des agences de presse, ainsi que des journa­listes dont l’activité s’exerce en ces domaines,

Se fixent comme objectif de faciliter une diffusion plus libre et plus large de l’informa- tion de toute nature, d’encourager la coopération dans le domaine de l’information et l’échange d’informations avec d’autres pays, ainsi que d’améliorer les conditions dans lesquelles les journalistes d’un Etat participant exercent leur profession dans un autre Etat participant, et

Expriment leur intention notamment :

a) Amélioration de la diffusion de l’information, de l’accès à l’information et de l’échange d’informations

(…)

ii) Information écrite

- De faciliter l’amélioration de la diffusion, sur leur territoire, des journaux et publica- tions imprimées, périodiques ou non périodiques en provenance des autres Etats parti- cipants.

(…)

- De contribuer à améliorer l’accès du public aux publications imprimées, pério­diques et non périodiques importées (…).

(…)

iii) Information filmée, radiodiffusée et télévisée

- De promouvoir l’amélioration de la diffusion d’informations filmées, radiodif­fusées et télévisées.

(…)

Les Etats participants prennent note de l’élargissement de la diffusion de l’information radiodiffusée et expriment l’espoir que ce processus se poursuive de sorte qu’il réponde à l’intérêt de la compréhension mutuelle entre les peuples ainsi qu’aux buts énoncés par cette Conférence.

b) Coopération dans le domaine de l’information

- D’encourager la coopération dans le domaine de l’information sur la base d’accords ou d’arrangements à court ou long terme. Notamment :

• ­ils favoriseront une coopération accrue entre organes d’information de masse, y com- pris les agences de presse, ainsi qu’entre organisations et maisons d’édition ;

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• ils favoriseront la coopération entre organisations de radiodiffusion et de télévision publiques ou privées, nationales ou internationales, en particulier par l’échange de programmes de radio et de télévision, tant en direct qu’enregistrés, ainsi que par la production en commun et la diffusion de tels programmes ;

• ils encourageront les rencontres et les contacts aussi bien entre organisations de jour- nalistes qu’entre journalistes des Etats participants ;

• ils envisageront favorablement les possibilités d’arrangements entre publica­tions périodiques ainsi qu’entre journaux des Etats participants. en vue de l’échange et de la publication d’articles ;

• ils encourageront l’échange d’informations techniques ainsi que l’organisation de recherches communes et de rencontres consacrées aux échanges d’expériences et de vues entre experts dans le domaine de la presse, de la radio et de la télévision.

c) Amélioration des conditions de travail des journalistes

Les Etats participants, désireux d’améliorer les conditions dans lesquelles les journa- listes d’un Etat participant exercent leur profession dans un autre Etat parti­cipant, ont l’intention en particulier de :

• examiner dans un esprit favorable et dans des délais appropriés et raison­nables les demandes de visa présentées par des journalistes ;

• accorder aux journalistes des Etats participants accrédités à titre permanent, sur la base d’arrangements, des visas à entrées et sorties multiples pour des délais détermi- nés ;

• faciliter la délivrance aux journalistes accrédités des Etats participants, de permis de séjour dans le pays de leur résidence temporaire et, si et quand ceux‑ci sont nécessai- res, des autres documents officiels qu’il leur convient d’avoir ;

• assouplir, sur une base de réciprocité, les procédures d’organisation des déplacements de journalistes des Etats participants dans le pays où ils exercent leur profession, et offrir progressivement de plus grandes possibilités pour ce genre de déplacements, sous réserve de l’observation des règlements relatifs à l’existence de régions interdites pour des raisons de sécurité ;

• faire en sorte qu’il soit, autant que possible, donné rapidement suite aux demandes présentées par lesdits journalistes en vue de tels déplacements, compte tenu du fac- teur temps propre à la demande ;

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• accroître les possibilités, pour les journalistes des Etats participants, de com­muniquer personnellement avec leurs sources d’information, y compris les organi­sations et les institutions officielles ;

• accorder aux journalistes des Etats participants le droit d’importer l’équipement tech- nique (photo, cinéma, magnétophone, radio et télévision) qui leur est nécessaire pour l’exercice de leur profession, sous la seule réserve que cet équipe­ment soit réexporté ;

• donner aux journalistes des autres Etats participants, accrédités à titre perma­nent ou temporaire, la possibilité de transmettre intégralement, normalement et rapidement aux organes d’information qu’ils représentent, en utilisant des moyens reconnus par les Etats participants, les résultats de leur activité professionnelle, y compris les enre- gistrements magnétiques et les pellicules et films non développés, aux fins de publica- tion, de radiodiffusion ou de télévision.

Les Etats participants réaffirment que les journalistes ne sauraient être expul­sés ni pénalisés de quelque autre manière du fait de l’exercice légitime de leur activité profes- sionnelle. En cas d’expulsion d’un journaliste accrédité, celui-ci sera informé des rai- sons de cette mesure et pourra demander le réexamen de son cas.

Madrid 1983 (Coopération dans les domaines humanitaires et autres) [Les Etats participants] favoriseront une expansion accrue de la coopération entre les mass media et entre leurs représentants, en particulier entre les membres des rédac- tions des agences de presse, des journaux, des organismes de radio et de télévision et des sociétés cinématographiques. Ils encourageront un échange plus régulier de nouvelles, d’articles, de suppléments et d’émissions ainsi que l’échange de personnels de rédac- tion afin que ceux‑ci approfondissent leur connaissance des pratiques respectives. Sur une base de réciprocité, ils amélioreront les services matériels et techniques offerts aux reporters de la radio et de la télévision accrédités à titre permanent ou temporaire. De plus, ils faciliteront les contacts directs entre journalistes, ainsi que les contacts établis dans le cadre d’organisations professionnelles.

Ils donneront suite sans retard indu aux demandes de visa émanant de journalistes et ils réexamineront dans des délais raisonnables les demandes rejetées. En outre, un journa- liste désirant voyager pour des raisons personnelles et non pour effectuer un reportage bénéficiera du même traitement que tout autre visiteur provenant de son pays d’origine.

Ils accorderont aux correspondants permanents et aux membres de leur famille vivant avec eux des visas à entrées et sorties multiples valables un an.

 Tout en reconnaissant que, dans de nombreux cas, les journalistes étrangers emploient du personnel local approprié, les Etats participants notent que les dispo¬sitions qui précèdent s’appliqueraient, sous réserve de l’observation des règlements pertinents, aux personnes provenant des autres Etats participants, qui sont régulière¬ment et professionnellement engagées comme techniciens, photographes ou cadreurs, de presse, de radio, de télévision ou de cinéma.

128 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Droits civils et politiques

Les Etats participants examineront la possibilité d’accorder, le cas échéant sur la base d’arrangements bilatéraux, l’accréditation et autres facilités connexes aux journalistes d’autres Etats participants accrédités à titre permanent dans des pays tiers.

Ils faciliteront les déplacements des journalistes d’autres Etats participants sur leurs territoires, notamment en prenant des mesures concrètes, là où cela s’avère néces- saire, pour leur accorder des possibilités de voyager d’une manière plus étendue, sauf dans les régions interdites pour des raisons de sécurité. Ils informeront les journalis- tes à l’avance, chaque fois que possible, au cas où de nouvelles régions seraient interdites pour des raisons de sécurité.

Ils permettront dans une plus grande mesure et, le cas échéant, dans de meilleures conditions, aux journalistes d’autres Etats participants d’établir et d’entretenir des contacts personnels et de communiquer avec leurs sources d’information.

Ils autoriseront, en règle générale, les journalistes de la radio et de la télévision, sur leur demande, à se faire accompagner par leurs propres techniciens du son et de l’image et à utiliser leur propre équipement.

De même, les journalistes pourront apporter de la documentation, y compris des notes et dossiers personnels, qui ne devront strictement servir qu’à des fins professionnelles.

Vienne 1989 (Coopération dans les domaines humanitaires et autres) (34) (…) [Les Etats participants] poursuivront leurs efforts pour faciliter une diffusion plus libre et plus large d’informations de toutes sortes, encourager la coopération dans le domaine de l’information et améliorer les conditions de travail des journalistes.

(…)

• ils veilleront à ce que la réception des émissions radiophoniques conformes aux Règle- ments des radiocommunications de l’UIT puisse se faire directement et normale- ment ;

(…)

(37) Ils encourageront les organismes de radiodiffusion et de télévision, sur la base d’ar- rangements conclus entre eux, à diffuser en direct, particulièrement dans les pays qui en assurent l’organisation, des émissions et des débats avec des participants provenant d’Etats différents, ainsi qu’à diffuser des déclarations de personnalités politiques ou autres des Etats participants, et des entre­tiens avec celles‑ci.

(38) Ils encourageront les organismes de radiodiffusion et de télévision à présenter des reportages sur les divers aspects de la vie dans les autres Etats participants et à accroître le nombre des émissions en duplex entre leurs pays.

 A cet régard, il est entendu que l’importation de publications imprimées peut être assujettie à la réglementation locale qui sera appliquée en tenant dûment compte de la nécessité pour les journalistes de disposer d’un matériel de travail approprié.

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(39) Rappelant que les journalistes ne sauraient être passibles d’expulsion ni pénalisés en aucune autre manière du fait de l’exercice légitime de leur activité professionnelle, les Etats participants s’abstiendront de prendre à leur encontre des mesures restricti- ves, comme celle qui consiste à retirer à un journaliste son accréditation ou à l’expulser en raison du contenu d’un reportage réalisé par lui ou diffusé par le moyen d’informa- tion qui l’emploie.

(40) Ils veilleront à ce que les journalistes, y compris ceux qui représentent des médias d’autres Etats participants, soient, dans l’exercice de leur activité professionnelle, libres de chercher à établir et à maintenir des contacts avec des sources d’information publi- ques et privées, et à ce que le caractère confidentiel de leurs activités professionnelles soit respecté.

(41) Ils respecteront les droits d’auteur des journalistes.

(42) Ils accorderont, le cas échéant sur la base d’accords conclus entre eux, et dans le but de permettre des reportages réguliers, l’accréditation, lorsqu’elle est exigée, et des visas valables pour plusieurs entrées à des journalistes d’autres Etats participants, quel que soit leur domicile. Au même titre, ils réduiront à un maximum de deux mois le délai de délivrance aux journalistes de leur accréditation et de visas valables pour plusieurs entrées.

(43) Ils faciliteront le travail des journalistes étrangers en fournissant, sur demande, des renseigne­ments pertinents d’ordre pratique en ce qui concerne, par exemple, les règle- ments en matière d’importation, de fiscalité et de logement.

(44) Ils veilleront à ce que les journalistes étrangers, après accréditation lorsque celle‑ci est requise, puissent eux aussi avoir accès aux conférences de presse officielles et, le cas échéant, à d’autres rencontres officielles analogues.

Copenhague 1990 (7) (…) les Etats participants

(…)

(7.8) — veilleront à ce qu’aucune obstacle d’ordre juridique ou administratif ne s’oppose au libre accès aux médias sur la base de la non‑discrimination pour tous les groupes ou groupements politiques et toutes les personnes désirant participer à des élections ;

Moscou 1991 (26) Les Etats participants réaffirment le droit à la liberté d’expression, y compris le droit (…) pour les médias, de recueillir, de commenter et de diffuser des informations, des nouvelles et des opinions. Toute restriction à l’exercice de ce droit doit être prévue par la loi et conforme aux normes internationales. Ils reconnaissent en outre que des médias indépendants sont essentiels à des sociétés libres et ouvertes et à des systèmes dans lesquels le gouvernement est comptable de son action, et que ces médias ont une

130 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Droits civils et politiques

importance particulière pour la protection des droits de l’homme et des libertés fonda- mentales.

(26.1) Ils considèrent que la presse écrite, la radiodiffusion et la télévision devraient avoir sur leur territoire un accès sans restriction aux services de presse et d’information étrangers. Le public aura, de manière analogue, la liberté de recevoir et de transmettre des informations et des idées, sans ingérence de la part des autorités publiques et sans considération de frontières, y compris le canal de publications et de stations de radiodif- fusion étrangères. Les restrictions à l’exercice de ce droit ne pourront être que celles qui sont prévues par la loi et sont conformes aux normes internationales.

(26.2) Les Etats participants ne feront preuve d’aucune discrimination à l’encontre des médias indépendants en ce qui concerne l’accès à l’information, au matériel et aux ins- tallations.

(…)

(28.9) Les Etats participants s’efforceront de maintenir la liberté d’expression et la liberté d’information, conformément à leurs obligations et engagements internationaux, en vue de permettre une discussion publique sur le respect des droits de l’homme et des liber- tés fondamentales ainsi que sur la levée de l’état d’exception. Ils ne prendront, confor- mément aux normes internationales relatives à la liberté d’expression, aucune mesure visant à interdire aux journalistes l’exercice légitime de leur profession à moins que la situation ne rende de telles mesures absolument nécessaires.

(…)

(34) Les Etats participants adopteront, s’il y a lieu, toutes les mesures qui peuvent être prises pour protéger les journalistes effectuant des missions professionnelles dange- reuses, particulièrement dans les cas de conflits armés, et ils coopéreront à cet effet. Ces mesures consisteront notamment à rechercher des journalistes disparus, faire la lumière sur leur sort, leur fournir l’assistance voulue et faciliter leur retour auprès de leur famille.

Budapest 1994 (Décisions : VIII. La dimension humaine) 36. Les Etats participants réaffirment que la liberté d’expression est un droit de l’homme fondamental et un élément essentiel de toute société démocratique. Ils estiment, à cet égard, que des médias indépendants et pluralistes sont indispensables à une société libre et ouverte et à des systèmes de gouvernements responsables. Ils adoptent pour principe directeur l’engagement de sauvegarder ce droit.

37. Ils condamnent les attaques et harcèlements quels qu’ils soient contre des journalis- tes dans l’exercice de leur profession et ils s’efforceront d’obliger les responsables directs de ces attaques et harcèlements à rendre compte de leurs actes.

38. Ils notent par ailleurs que l’utilisation des médias, notamment par les gouverne- ments pour inciter à la haine et aviver les tensions ethniques, peut apparaître comme un signe avant‑coureur de conflit.

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Lisbonne 1996 (Déclaration du sommet) 9. (…) Parmi les problèmes aigus relevant de la dimension humaine, les violations conti- nues des droits de l’homme, comme par exemple (…) les menaces pour l’indépendance des médias (…) continuent à mettre en péril la stabilité dans la région de l’OSCE. Nous sommes résolus à continuer de nous attaquer à ces problèmes.

(…)

11. La liberté de la presse et des médias est l’une des conditions fondamentales de toute société civile réellement démocratique. (…)

Copenhague 1997 (Annexe 1 : Décision No. 193 du Conseil Permanent, Mandat du Représentant de l’OSCE pour la liberté des medias) 1. Les Etats participants (…) rappellent en particulier que la liberté d’expression est un droit de l’homme et fondamental, reconnu sur le plan international et un élément capi- tal de toute société démocratique ; et que la liberté, l’indépendance et le pluralisme des médias sont essentiels pour une société libre et ouverte et les systèmes de gouvernement responsables. Ayant à l’esprit les principes et engagements auxquels ils ont souscrit dans le cadre de l’OSCE (…) les Etats participants décident de créer, sous l’égide du Conseil permanent, un poste de Représentant de l’OSCE pour la liberté des médias. L’objectif est de consolider la mise en œuvre des principes et engagements de l’OSCE et d’accroî- tre l’efficacité de l’action concertée des Etats participants, en se fondant sur leurs valeurs communes. Les Etats participants confirment qu’ils coopéreront sans réserve avec le Représentant de l’OSCE pour la liberté des médias. Il aidera les Etats participants, dans un esprit de coopération, à poursuivre leur engagement en faveur de la liberté, de l’indé- pendance et du pluralisme des médias.

Istanbul 1999 (Déclaration du sommet) 27. (…) Nous sommes profondément préoccupés par la manière dont les médias sont exploités dans les zones de conflit pour attiser la haine et la tension ethnique, et par le recours à des restrictions et tracasseries juridiques pour priver les citoyens de médias libres. Nous soulignons la nécessité de garantir la liberté d’expression qui est, dans toute démocratie, une composante essentielle du discours politique. Nous appuyons le bureau du Représentant pour la liberté des médias dans ses efforts pour promouvoir la liberté et l’indépendance des médias.

Istanbul 1999 (Charte de sécurité européenne : III. Notre réponse commune) 26. Nous réaffirmons l’importance des médias indépendants et de la libre circulation des informations tout comme de l’accès du public à l’information. Nous nous engageons à prendre toutes les mesures nécessaires pour réunir les conditions indispensables à la liberté et à l’indépendance des médias ainsi qu’à la circulation sans entraves de l’infor- mation au‑delà des frontières et à l’intérieur des Etats (…)

132 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Droits civils et politiques

C. Liberté d’expression culturelle ou artistique Voir aussi : á Partie II. 3.2.3 : Droits culturels/héritage culturel

Paris 1990 (Une nouvelle ère de démocratie, de paix et d’unité) Nous reconnaissons que notre culture commune européenne et nos valeurs partagées ont contribué de manière essentielle à surmonter la division du continent. Par consé- quent, nous soulignons notre attachement à la liberté créatrice, ainsi qu’à la protec- tion et la promotion de notre patrimoine culturel et spirituel, dans toute sa richesse et sa diversité.

Cracovie 1991 (I. Culture et liberté) 1. Les Etats participants soulignent que le respect des droits de l’homme et des libertés fondamentales est essentiel au plein épanouissement de la créativité culturelle.

2. L’Etat et les autorités nationales s’abstiendront de faire obstacle à la liberté de créa- tion artistique.

3. Les Etats participants s’engagent à promouvoir et protéger le développement libre et sans entrave de la créativité artistique ; ils reconnaissent le rôle éminent de l’artiste dans la société, respectent et protègent l’intégrité du travail de création.

4. Ils reconnaissent que les gouvernements doivent rechercher un équilibre entre les res- ponsabilités qui leur incombent d’appuyer d’une part l’activité culturelle et d’en garan- tir la liberté d’autre part.

5. Ils reconnaissent en outre qu’étant donné la diversité des activités culturelles dans les Etats participants, il existe pour les gouvernements de nombreuses façons d’apporter efficacement des réponses aux problèmes relatifs au patrimoine culturel.

6. Les Etats participants rappellent leur respect de la liberté d’expression et, s’agissant de ses manifestations dans le domaine artistique et culturel, déclarent ce qui suit :

6.1 La publication d’œuvres écrites, la représentation et la diffusion d’œuvres musicales, théâtrales et audiovisuelles et l’exposition des œuvres de peintres ou de sculpteurs ne feront l’objet ni de restrictions ni d’ingérence de la part de l’Etat, à l’exception des res- trictions qui sont prévues par la législation nationale et sont entièrement conformes aux normes internationales.

6.2 Les Etats participants se déclarent convaincus que l’existence, dans le domaine artistique et culturel, de toute une gamme de moyens de diffusion indépendants de l’Etat, tels que maisons d’édition, entreprises de radiodiffusion, de cinéma ou de télé- vision, théâtres et galeries, contribue à assurer le pluralisme et la liberté de l’expression artistique et culturelle.

Les engagements de la dimension humaine de l’OSCE 133 Engagements relatifs aux droits de l’homme applicables à tout Pa rt i e II

7. Les Etats participants rappellent leurs engagements en faveur d’un accès sans entrave à la culture et conviennent de ce qui suit :

7.1 Dans le respect des droits à la propriété intellectuelle, toute personne ou organisa- tion indépendante a le droit de posséder à titre privé, d’utiliser et de reproduire tous matériels culturels, tels que livres, publications et enregistrements audiovisuels, ainsi que les moyens de les reproduire.

Moscou 1991 (35) Les Etats participants réaffirment que la garantie de la liberté de la création artistique et la préservation du patrimoine culturel font partie de la dimension humaine de la CSCE. Ils considèrent que l’indépendance de la vie intellectuelle et culturelle est essentielle au maintien et au développement de sociétés libres et d’institutions démocratiques. Ils rem- pliront leurs engagements dans le domaine culturel, comme le prévoit le Document du Colloque de Cracovie sur le patrimoine culturel (…).

3.1.11 Liberté de mouvement, contacts humains et regroupement familial Voir aussi : á Partie II. 4.4 : Réfugiés, personnes déplacées, retour des migrants et apatrides á Partie II. 4.5 : Travailleurs migrants

Helsinki 1975 (Coopération dans les domaines humanitaires et autres) Les Etats participants,

Considérant le développement des contacts comme un élément important du renforce- ment des relations amicales et de la confiance entre les peuples,

(…)

Se fixent comme objectif de faciliter, sur le plan individuel et collectif, tant privé qu’of- ficiel, un mouvement et des contacts plus libres entre personnes, institu­tions et orga- nisations des Etats participants, et de contribuer à la solution des problèmes d’intérêt humain qui se posent à cet égard,

Se déclarent prêts à ces fins à prendre les mesures qu’ils jugent appropriées et à conclure, selon les besoins, des accords ou des arrangements entre eux, et

Expriment leur intention, dès maintenant de procéder à l’application de ce qui suit :

a) Contacts et rencontres régulières sur la base des liens de famille

Afin de favoriser la poursuite du développement des contacts sur la base des liens de famille, les Etats participants examineront favorablement les demandes de déplacement en vue de permettre l’entrée ou la sortie de leur territoire à titre temporaire, et de façon régulière si celle-ci est souhaitée, aux personnes désireuses de faire visite à des membres de leurs familles.

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Les demandes de déplacements temporaires en vue de rencontrer des membres de leur famille seront traitées sans distinction quant au pays d’origine ou de desti­nation : les for- malités requises pour la délivrance des documents de voyage et des visas seront appli- quées dans cet esprit. L’établissement et la délivrance de tels documents et visas auront lieu dans un délai raisonnable ; en cas de nécessité urgente — tels que maladie grave ou décès — ils seront traités en priorité. Ils prendront les mesures qui peuvent être néces- saires pour faire en sorte que les droits à verser pour obtenir les documents officiels de voyage et les visas soient acceptables.

Ils confirment que la présentation d’une demande concernant des contacts sur la base des liens de famille n’entraînera pas de modification des droits et obliga­tions du requé- rant ou de membres de sa famille

b) Réunion des familles

Les Etats participants traiteront dans un esprit positif et humain les demandes présen- tées par les personnes qui désirent être réunies avec des membres de leur famille, en accordant une attention particulière aux requêtes d’un caractère urgent — telles que celles soumises par des personnes malades ou âgées.

Ils traiteront les demandes en ce domaine d’une manière aussi diligente que possible.

Ils ramèneront, là où cela est nécessaire, le montant des droits à verser en liaison avec ces demandes pour faire en sorte qu’il soit à un niveau raisonnable.

Les demandes aux fins de réunion des familles qui n’auront pas été agréées pourront être renouvelées au niveau approprié et elles seront réexaminées à des intervalles rai- sonnablement courts par les autorités du pays de résidence ou d’accueil en question ; dans ces circonstances, les droits ne seront perçus que lorsque les demandes auront été agréées.

Les personnes dont les demandes présentées au titre de la réunion des familles auront été agréées pourront emporter ou expédier leurs biens meubles, effets et objets person- nels ; à cette fin, les Etats participants utiliseront toutes les possibilités offertes par les règlements en vigueur.

En attendant que les membres d’une mémé famille soient réunis, ils pourront se ren- contrer et établir entre eux des contacts conformément aux modalités prévues pour les contacts sur la base des liens de famille.

Les Etats participants appuieront les efforts déployés par les Sociétés de la Croix‑Rouge et du Croissant-Rouge qui s’occupent des problèmes de la réunion des familles.

Ils confirment que la présentation d’une demande relative à la réunion d’une famille n’entraînera pas de modification des droits et obligations du requérant ou de membres de sa famille.

Les engagements de la dimension humaine de l’OSCE 135 Engagements relatifs aux droits de l’homme applicables à tout Pa rt i e II

L’Etat participant d’accueil prendra les mesures appropriées en ce qui concerne l’em- ploi des personnes provenant d’autres Etats participants qui viennent s’installer d’une manière permanente dans cet Etat pour rejoindre des membres de leur famille ressor- tissants dudit Etat et veillera à ce que leur soient offertes les mêmes possibilités qu’à ses propres ressortissants dans les domaines de l’éducation, de l’assistance médicale et de la sécurité sociale.

c) Mariage entre citoyens d’Etats différents

Les Etats participants examineront favorablement et en se fondant sur des considéra- tions humanitaires les demandes d’autorisation de sortie ou d’entrée pré­sentées par des personnes qui ont décidé d’épouser un citoyen d’un autre Etat participant.

L’examen et la délivrance des documents nécessaires aux fins précitées ainsi qu’à la célé- bration du mariage s’effectueront en conformité avec les dispositions acceptées pour la réunion des familles.

Les Etats participants appliqueront également les dispositions acceptées pour la réunion des familles lorsqu’ils examineront les demandes présentées par des conjoints prove- nant d’Etats participants différents, afin de leur permettre, ainsi qu’aux enfants mineurs de leur mariage, de transférer leur résidence permanente dans un Etat où réside habi- tuellement l’un d’entre eux.

d) Déplacements pour raisons personnelles ou professionnelles

Les Etats participants entendent faciliter de plus larges déplacements de leurs ressortis- sants pour des raisons personnelles ou professionnelles, et à cette fin ils ont l’intention en particulier :

• de simplifier progressivement et de faire appliquer avec souplesse les formali­tés de sor- tie et d’entrée ;

• d’assouplir les règlements relatifs aux déplacements des ressortissants des autres Etats participants sur leur territoire, en tenant dûment compte des exigences de la sécurité.

Ils s’efforceront d’abaisser progressivement, là où nécessaire, le montant des droits à verser pour les visas et les documents officiels de voyage.

Ils entendent examiner, le cas échéant, des moyens – y compris, dans la mesure où cela s’avère approprié, la conclusion de conventions consulaires multila­térales ou bilatérales ou l’adoption d’autres accords ou instruments pertinents ­en vue d’améliorer les arran- gements relatifs aux services consulaires, y compris l’assistance juridique et consulaire.

Madrid 1983 (Coopération dans les domaines humanitaires et autres) Contacts entre les personnes Les Etats participants accorderont un traitement favorable aux demandes relatives à des contacts et à des rencontres régulières sur la base des liens de famille, à la réunion

136 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Droits civils et politiques

des familles et aux mariages entre citoyens d’Etats différents et se prononceront sur ces demandes dans le même esprit.

Ils se prononceront sur les demandes de rencontres familiales ayant un caractère d’ur- gence d’une manière aussi diligente que possible ; sur celles relatives à la réunion des familles et aux mariages entre citoyens d’Etats différents dans un délai de six mois, en règle générale, et sur celles relatives aux autres rencontres familiales dans des délais qui seront progressivement réduits.

Ils confirment que la présentation ou le renouvellement de demandes relatives à de tels cas n’entraînera pas de modification des droits et obligations du requérant ou des mem- bres de sa famille notamment en matière d’emploi, de logement, de statut de résidence, de soutien familial, de droit aux prestations sociales, économiques ou éducatives ou de tous autres droits et obligations découlant des lois et règlements de l’Etat participant concerné.

Les Etats participants fourniront les informations nécessaires sur les procédures à sui- vre par les requérants dans de tels cas ainsi que sur les règlements à observer et fourni- ront les formulaires appropriés aux requérants qui en feront la demande.

Ils abaisseront graduellement, là où cela est nécessaire, le montant des droits à verser au titre de ces demandes, y compris les frais de visas et de passeports, afin d’en ramener le montant à un niveau modéré par rapport au revenu mensuel moyen dans l’Etat partici- pant considéré.

Le requérant sera informé d’une manière aussi diligente que possible de la décision qui aura été prise. En cas de refus, le requérant sera également informé de son droit à renou- veler sa demande au terme d’un délai raisonnablement court.

Vienne 1989 (Questions relatives à la sécurité en Europe : Principes) (20) Les Etats participants respecteront pleinement le droit de chacun :

• de circuler librement et de choisir sa résidence à l’intérieur des frontières de chaque Etat, et

• de quitter tout pays, y compris le sien, et de revenir dans son pays.

Vienne 1989 (Coopération dans les domaines humanitaires et autres) Contacts entre les personnes (1) En mettant en œuvre les dispositions de l’Acte final, du Document de clôture de Madrid et du présent document relatives aux contacts entre les personnes, ils respec- teront pleinement les obliga­tions qui leur incombent conformément au droit interna- tional, telles qu’elles sont mentionnées dans le sous‑chapitre du présent document rela- tif aux principes, en particulier le respect de la liberté de chacun de quitter tout pays, y compris le sien, et de revenir dans son pays, ainsi que leurs engagements internationaux dans ce domaine.

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(2) Ils veilleront à ce que leurs politiques concernant l’entrée sur leur territoire soient en parfait accord avec les objectifs définis dans les dispositions pertinentes de l’Acte final, du Document de clôture de Madrid et du présent document.

(3) Ils prendront les mesures nécessaires pour trouver dans un délai aussi bref que pos- sible—mais en tout état de cause n’excédant pas six mois—des solutions à toutes les demandes fondées sur les dispositions de l’Acte final et du Document de clôture de Madrid relatives aux contacts entre les personnes, qui seront encore en suspens à la conclusion de la Réunion de Vienne tenue dans le cadre des Suites de la Conférence.

(4) Ils procéderont par la suite à des examens réguliers afin de garantir que toutes les demandes fondées sur les dispositions de l’Acte final et des autres documents de la CSCE susmentionnés relatives aux contacts entre les personnes, soient examinées d’une manière conforme aux dites dispositions.

(5) Ils se prononceront le plus rapidement possible, en règle générale dans un délai d’un mois, sur les demandes de rencontres familiales, conformément à l’Acte final et aux autres documents de la CSCE susmentionnés.

(6) Ils se prononceront de la même manière sur les demandes de réunion des familles ou de mariage entre citoyens d’Etats différents, en règle générale dans un délai de trois mois.

(7) Lorsqu’ils examineront favorablement des demandes de rencontres familiales, ils tiendront dûment compte des souhaits du requérant, en particulier en ce qui concerne les dates et la durée —suffisamment longue—prévues pour de telles rencontres, ainsi que la possibilité pour lui de s’y rendre accompagné de membres de sa famille.

(8) Lorsqu’ils examineront favorablement les demandes de rencontres familiales, ils autoriseront également les visites à des parents plus éloignés et les visites de ceux‑ci.

(9) Lorsqu’ils examineront favorablement les demandes de réunion des familles ou de mariage entre citoyens d’Etats différents, ils respecteront les souhaits des requérants en ce qui concerne le pays de destination disposé à les accueillir.

(10) Ils porteront une attention particulière à la solution des problèmes concernant la réunion d’enfants mineurs à leurs parents. A cet égard, en se fondant sur les disposi- tions pertinentes de l’Acte final et des autres documents de la CSCE susmentionnés, ils veilleront à ce que

• les demandes en ce sens présentées pendant la minorité des enfants soient examinées favorablement et avec diligence de telle sorte que la réunion de la famille ait lieu sans retard ;

• des dispositions appropriées soient prises pour protéger les intérêts et le bien‑être des enfants concernés.

138 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Droits civils et politiques

(11) Ils examineront les possibilités de réduire progressivement et, par la suite, d’éli- miner toute obli­gation qui pourrait exister pour les voyageurs d’acquérir en monnaie locale des sommes supé­rieures à leurs dépenses réelles, en donnant la priorité sur ce point aux personnes qui voyagent pour participer à une rencontre familiale. Ils leur accorderont la possibilité, dans la pratique, d’apporter ou d’emporter des objets person- nels ou des cadeaux.

(12) Ils examineront sans délai les demandes d’autorisation de voyage pour des raisons humanitaires urgentes et les traiteront favorablement comme suit :

• dans les cas de visites à un membre de la famille gravement malade ou mourant, de voyages pour assister aux obsèques d’un membre de la famille ou de voyages pour sui- vre un traite­ment médical, quand il est prouvé que le patient en a un besoin urgent ou établi qu’il est entré dans une phase critique ou terminale de sa maladie, ils se pronon- ceront dans un délai de trois jours ouvrables ;

• dans les cas de voyages de personnes gravement malades ou âgées ou d’autres voya- ges pour des raisons humanitaires urgentes, ils se prononceront aussi rapidement que possible.

Ils veilleront à ce que les autorités locales, régionales et centrales chargées d’appliquer les dis­positions susmentionnées intensifient leurs efforts et à ce que les droits perçus pour examiner ces demandes de façon prioritaire ne soient pas supérieurs aux coûts effectivement supportés.

(13) Lors de l’examen des demandes de voyage pour des rencontres familiales, pour la réunion de familles ou pour des mariages entre citoyens d’Etats différents, ils veilleront à ce qu’aucun acte ni aucune omission de membres de la famille du requérant ne lèse les droits de ce dernier, tels qu’ils sont énoncés dans les instruments internationaux perti- nents.

(14) Ils veilleront à ce que tous les documents nécessaires pour les demandes fondées sur les disposi­tions relatives aux contacts entre les personnes figurant dans l’Acte final et des autres documents de la CSCE susmentionnés soient aisément accessibles au requérant. Ces documents resteront valables pendant toute la procédure d’examen de la demande. En cas de renouvellement de la demande, les documents déjà présentés par le requérant à l’occasion de demandes précédentes seront pris en considération.

(15) Ils simplifieront les procédures et réduiront progressivement le nombre des pres- criptions administratives applicables aux demandes fondées sur les dispositions relati- ves aux contacts entre les personnes figurant dans l’Acte final et les autres documents de la CSCE susmentionnés.

(16) Lorsque les demandes fondées sur les dispositions relatives aux contacts entre les personnes figurant dans l’Acte final et les autres documents de la CSCE susmentionnés sont refusées pour des motifs prévus dans les instruments internationaux pertinents, ils veilleront à ce que le requérant reçoive promptement une notification officielle écrite

Les engagements de la dimension humaine de l’OSCE 139 Engagements relatifs aux droits de l’homme applicables à tout Pa rt i e II

des motifs de la décision de refus. En règle générale—et chaque fois qu’il le sollicitera— , le requérant sera informé de façon adéquate de la procédure à suivre pour introduire, par la voie administrative ou judiciaire, tout recours efficace dont il dispose en vertu des instruments internationaux susmentionnés. En cas de départ en vue d’un établissement permanent à l’étranger, ces informations seront communiquées avec la notifi­cation offi- cielle prévue ci‑dessus.

(17) Lorsque, dans ces circonstances, une demande de voyage à l’étranger présentée par une personne aura été rejetée pour des raisons de sécurité nationale, ils veilleront à ce que, dans des délais stricte­ment justifiés, toute restriction concernant le voyage de cette personne soit aussi brève que possible et qu’elle n’ait aucun caractère arbitraire. Ils veilleront également à ce que le requérant obtienne que le refus soit reconsidéré dans un délai de six mois, et ensuite, en cas de besoin, à intervalles réguliers afin que toute modification des circonstances ayant entraîné le refus—comme, par exemple, le temps écoulé depuis que le requérant a exercé pour la dernière fois, à titre professionnel ou pour des raisons de service, des activités relevant de la sécurité nationale—soit prise en considération. Avant que des personnes n’exercent de telles activités, on leur fera offi- ciellement savoir si et en quoi cela peut influer sur la suite donnée aux demandes qu’el- les pourraient présenter en vue de tels voyages.

(18) Ils publieront et rendront facilement accessibles dans l’année qui suivra la clôture de la Réunion de Vienne, si cela n’a pas déjà été fait, toutes les dispositions législatives et réglementaires relatives aux déplacements de personnes sur leur territoire et aux voya- ges entre Etats.

(19) Ils examineront favorablement les demandes fondées sur les dispositions relatives aux contacts entre les personnes figurant dans l’Acte final et les autres documents de la CSCE susmentionnés en veillant à ce que ces demandes soient traitées en temps voulu afin, entre autres, que des con­sidérations familiales, personnelles ou professionnelles qui sont importantes pour le requérant puissent être dûment prises en considération.

(20) Ils examineront favorablement les demandes de voyage à l’étranger sans distinction aucune, notamment de race, de couleur, de sexe, de langue, de religion, d’opinion poli- tique ou de toute autre opinion, d’origine nationale ou sociale, de fortune, de naissance, d’âge ou de toute autre situation. Ils veilleront à ce qu’aucun refus n’influe sur la suite donnée aux demandes présentées par d’autres personnes.

(21) Ils faciliteront encore davantage les voyages individuels ou collectifs entrepris pour des raisons personnelles, professionnelles ou touristiques, tels que les voyages de délé- gations, de groupes ou de particuliers. A cet effet, ils réduiront au minimum le délai d’examen des demandes de voyage de ce type.

(22) Ils examineront avec une attention particulière les propositions visant à la conclu- sion d’accords sur la délivrance de visas valables pour plusieurs entrées et la simplifi- cation réciproque des for­malités de délivrance de visas. Ils examineront également les

140 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Droits civils et politiques

possibilités de supprimer sur une base de réciprocité, à la suite d’accords conclus entre eux, l’obligation des visas d’entrée.

(23) Ils examineront la possibilité d’adhérer aux instruments multilatéraux pertinents et, s’il y a lieu, de conclure des accords bilatéraux, complémentaires ou autres, afin d’améliorer les dispositions destinées à assurer une assistance consulaire, juridique et médicale efficace aux citoyens d’autres Etats participants séjournant sur leur territoire à titre temporaire.

(24) Ils prendront toute mesure nécessaire pour que, si ce n’est pas déjà le cas, les citoyens d’autres Etats participants séjournant à titre temporaire sur leur territoire pour des raisons d’ordre per­sonnel ou professionnel, entre autres pour participer à des activi- tés culturelles, scientifiques et éducatives, bénéficient d’une sécurité personnelle conve- nable.

(…)

(31) Ils veilleront à ce que les personnes appartenant aux minorités nationales ou aux cultures régionales sur leur territoire aient un statut égal à celui des autres citoyens conformément aux dispositions relatives aux contacts entre les personnes de l’Acte final et des autres documents de la CSCE susmentionnés, et à ce qu’elles puissent éta- blir et maintenir de tels contacts par des voyages et d’autres moyens de communication, y compris des contacts avec des citoyens d’autres Etats qui ont une origine nationale ou un patrimoine culturel communs.

(32) Ils permettront aux croyants, aux cultes et à leurs représentants d’établir et de maintenir, collec­tivement ou individuellement, des contacts personnels directs, ainsi que des communications entre eux dans leur propre pays et à l’étranger, y compris par des voyages, des pèlerinages et la participa­tion à des assemblées et à d’autres manifes- tations religieuses. Dans ce contexte, et en rapport avec ces contacts et ces manifesta- tions, les intéressés seront autorisés à acquérir, recevoir et transporter des publications et des objets religieux liés à la pratique de leur religion ou de leur croyance.

Copenhague 1990 (9) Les Etats participants réaffirment que

(…)

(9.5) — ils respectent le droit de toute personne de quitter tout pays, y compris le sien, et de revenir dans son pays, conformément aux obligations internationales de l’Etat et aux engagements contractés au titre de la CSCE. Les restrictions apportées à ce droit auront un caractère tout à fait exceptionnel et ne seront jugées nécessaires que si elles répon- dent à un besoin public spécifique, visent un objectif légitime et sont proportionnées à cet objectif et s’il n’en est pas fait un usage abusif ou arbitraire ;

(…)

Les engagements de la dimension humaine de l’OSCE 141 Engagements relatifs aux droits de l’homme applicables à tout Pa rt i e II

(10.4) — à permettre aux membres de ces groupes et organisations d’avoir librement accès à des organismes similaires, à l’intérieur et hors des frontières de leur pays, ainsi qu’à des organisations internationales et de communiquer avec ceux‑ci, de procéder à des échanges, de nouer des contacts et de coopérer avec ces groupements et organisa- tions (…).

(…)

(19) Les Etats participants affirment qu’une plus grande liberté de mouvement et de contacts entre les citoyens est importante dans le contexte de la protection et de la pro- motion des droits de l’homme et des libertés fondamentales. Ils veilleront à ce que leurs politiques concernant l’entrée sur leur territoire soient parfaitement compatibles avec les objectifs fixés dans les dispositions pertinentes de l’Acte final et des Documents de clôture de la Réunion de Madrid et de la Réunion de Vienne. Tout en réaffirmant leur détermination à ne pas revenir sur les engagements qui figurent dans les documents de la CSCE, ils s’engagent à appliquer intégralement et à améliorer les procédures actuelles dans le domaine des contacts entre les personnes, y compris sur une base bilatérale et multilatérale. Dans ce contexte

(19.1) — ils s’efforceront d’appliquer les procédures d’entrée sur leur territoire, y com- pris en ce qui concerne la délivrance des visas ainsi que le contrôle des passeports et le contrôle douanier, de bonne foi et sans retard injustifié. Si besoin est, ils raccourciront le délai d’attente pour les décisions concernant les visas et ils simplifieront les pratiques et réduiront les formalités administratives des demandes de visa ;

(19.2) — ils veilleront, en examinant les demandes de visa, à ce que celles‑ci soient trai- tées avec diligence afin, entre autres, que des considérations familiales, personnelles ou professionnelles importantes puissent être dûment prises en considération, surtout dans les cas urgents à caractère humanitaire ;

(19.3) — ils s’efforceront, si nécessaire, d’abaisser les droits afférents à la délivrance des visas pour les ramener au niveau le plus bas possible.

Paris 1990 (Une nouvelle ère de démocratie, de paix et d’unité) Conformément aux engagements que nous avons pris dans le cadre de la CSCE, nous soulignons que la liberté de circulation et de contacts entre nos citoyens, ainsi que la libre circulation de l’information et des idées, sont essentielles à la pérennité et au développe- ment de sociétés libres et de cultures florissantes. (…)

Moscou 1991 (33) Les Etats participants supprimeront toutes les restrictions légales et autres à la cir- culation sur leur territoire de leurs ressortissants et des étrangers, et à la résidence des personnes autorisées à résider en permanence, sous réserve des restrictions nécessai- res, lesquelles devront être officiellement annoncées et motivées par des considérations d’ordre écologique, militaire ou de sécurité ou par d’autres intérêts nationaux légitimes, conformément à leur législation nationale, aux engagements souscrits dans le cadre de la

142 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Droits civils et politiques

CSCE et aux obligations internationales relatives aux droits de l’homme. Les Etats par- ticipants s’engagent à faire en sorte que ces restrictions soient réduites au minimum.

Budapest 1994 (Décisions : VIII. La dimension humaine) 40. Ils encourageront les autorités administratives qui s’occupent de citoyens d’autres Etats à appliquer intégralement les engagements de la CSCE concernant les voyages et s’abstiendront d’infliger des traitements dégradants et autres outrages contre la dignité de la personne. (…)

3.1.12 Respect de la vie privée et de la vie de famille Voir aussi : á Partie II. 3.1.11: Liberté de mouvement, contacts humains et regroupement familial

Moscou 1991 (24) Les Etats participants confirment à nouveau le droit à la protection de la vie pri- vée et familiale, du domicile, de la correspondance et des communications électroni- ques. Afin d’éviter toute ingérence abusive ou arbitraire de l’Etat dans la sphère person- nelle de l’individu, qui serait préjudiciable à toute société démocratique, l’exercice de ce droit ne pourra faire l’objet de restrictions que si ces restrictions sont prévues par la loi et compatibles avec les normes internationales communément admises en matière de droits de l’homme. Les Etats participants assureront en particulier que les fouilles de personnes, les perquisitions de locaux et les saisies de biens privés ne soient opérées que conformément aux normes susceptibles d’un contrôle judiciaire.

3.1.13 Droit à la nationalité Voir aussi : á Partie II. 4.4 : Réfugiés, personnes déplacées, retour des migrants et apatrides

Helsinki 1992 (Décisions : VI. La dimension humaine) Les Etats participants

(55) Reconnaissent que tout individu a droit à une nationalité et que nul ne peut être privé de sa nationalité arbitrairement ;

(56) Ils soulignent que tous les aspects de la nationalité seront traités dans le respect de la légalité. Ils prendront, le cas échéant, des mesures compatibles avec leur système constitutionnel pour ne pas augmenter le nombre des cas d’apatridie ;

Istanbul 1999 (Charte de sécurité européenne : III. Notre réponse commune) 19. (…) Nous réaffirmons que nous reconnaissons que tout individu a droit à une natio- nalité et que personne ne devrait être privée arbitrairement de sa nationalité. Nous nous engageons à poursuivre nos efforts pour garantir que tout le monde puisse exercer ce droit. Nous nous engageons aussi à contribuer à assurer la protection internationale des personnes apatrides.

Les engagements de la dimension humaine de l’OSCE 143 Engagements relatifs aux droits de l’homme applicables à tout Pa rt i e II

3.1.14 Droit de propriété Bonn 1990 (…) les Etats participants,

S’efforceront d’atteindre ou de poursuivre les objectifs suivants :

(…)

• la reconnaissance et la protection intégrales de tous les types de propriété, y compris la propriété privée, et du droit des citoyens à les posséder et à les utiliser, ainsi que des droits de propriété intellectuelle ;

• le droit au versement rapide d’une indemnité compensatoire équitable dans le cas où un bien privé est retiré à son propriétaire en vue d’une utilisation publique ;

(…)

Copenhague 1990 (9) Les Etats participants réaffirment que

(…)

(9.6) — toute personne a le droit de jouir en paix de sa propriété, à titre individuel ou en association avec d’autres. Nul ne peut être privé de sa propriété que pour cause d’utilité publique, et sous réserve des conditions prévues par la loi et conformément aux obliga- tions et engagements internationaux.

Paris 1990 (Une nouvelle ère de démocratie, de paix et d’unité) Nous affirmons que, sans discrimination, (…) chacun a (…) le droit :

(…)

de posséder un bien seul ou en association et de mener des entreprises individuelles, (…)

3.2 Droits économiques, sociaux et culturels

3.2.1 Provisions générales Helsinki 1975 (Questions relatives à la sécurité en Europe : 1. (a) Déclaration sur les principes régissant les relations mutuelles des Etats participants ; Principes VII-IX) VII. Respect des droits de l’homme et des libertés fondamentales, y compris la liberté de pensée, de conscience, de religion ou de conviction (…)

144 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Droits économiques, sociaux et culturels

[Les Etats participants] favorisent et encouragent l’exercice effectif des libertés et droits civils, politiques, économiques, sociaux, culturels et autres qui découlent tous de la dignité inhérente à la personne humaine et qui sont essentiels à son épanouisse­ment libre et intégral.

(…)

IX. Coopération entre les Etats (…)

[Les Etats participants] s’efforcent, en développant leur coopération sur un pied d’éga- lité, de faire progresser la compréhension et la confiance mutuelles, les relations amica- les et de bon voisinage entre eux, la paix internationale, la sécurité et la justice. Ils s’effor- cent également, en développant leur coopération, d’améliorer le bien‑être des peuples et de contribuer à la satisfaction de leurs aspirations grâce, entre autres, aux avantages résul- tant d’une connaissance mutuelle accrue et des progrès et réali­sations dans les domai- nes d’ordre économique, scientifique, technologique, social, culturel et humanitaire. Ils prennent des mesures propres à créer des conditions permettant de rendre ces avanta- ges accessibles à tous ; ils prennent en considération l’intérêt de tous dans la réduction des différences entre les niveaux de développement économique, et notamment l’intérêt des pays en voie de développement du monde entier.

Madrid 1983 (Questions relatives à la sécurité en Europe : Principes) [Les Etats participants] se déclarent résolus à développer leurs lois et règlements dans le domaine des droits (…) économiques, sociaux, culturels et des autres droits de l’homme et des libertés fondamentales ; ils soulignent également leur détermination d’assurer l’exercice effectif de ces droits et libertés.

Vienne 1989 (Questions relatives à la sécurité en Europe : Principes) (12) (…) Ils reconnaissent que les libertés et droits (…) économiques, sociaux, culturels et autres, sont tous d’une importance capitale et doivent être pleinement mis en œuvre par tous les moyens appropriés.

(13) A cet égard,

(13.1) — ils développeront leurs lois, règlements et politiques concernant les droits civils, politiques, économiques, sociaux, culturels et les autres droits de l’homme et libertés fondamentales, et les appliqueront de manière à assurer l’exercice effectif de ces droits et libertés ;

(13.2) — ils envisageront d’adhérer, s’ils ne 1’ont pas encore fait, aux instruments sui- vants : Pacte international relatif aux droits civils et politiques, Pacte international rela- tif aux droits écono­miques, sociaux et culturels, Protocole facultatif se rapportant au Pacte international relatif aux droits civils et politiques, et autres instruments interna- tionaux pertinents ;

Les engagements de la dimension humaine de l’OSCE 145 Engagements relatifs aux droits de l’homme applicables à tout Pa rt i e II

(…)

(14) Les Etats participants reconnaissent que la promotion des droits économiques, sociaux et cul­turels, ainsi que celle des droits civils et politiques, est d’une importance capitale pour la dignité humaine et pour l’aboutissement des aspirations légitimes de chacun. Ils continueront donc leurs efforts en vue d’assurer progressivement le plein exercice des droits économiques, sociaux et culturels par tous les moyens appropriés, y compris en particulier par l’adoption de mesures légis­latives. A cet égard, ils accorde- ront une attention particulière aux problèmes de l’emploi, du loge­ment, de la sécurité sociale, de la santé, de l’éducation et de la culture. Ils favoriseront un progrès constant dans l’exercice de tous les droits et de toutes les libertés à l’intérieur de leurs frontiè- res, ainsi que dans le développement des relations qu’ils entretiennent entre eux et avec d’autres Etats de façon que tout un chacun jouisse effectivement et pleinement de ses droits économiques, sociaux et culturels, ainsi que de ses droits civils et politiques.

Paris 1990 (Une nouvelle ère de démocratie, de paix et d’unité) Nous affirmons que, sans discrimination, (…) chacun a (…) le droit :

(…)

• de jouir de ses droits économiques, sociaux et culturels.

3.2.2 Droits économiques et sociaux A. Provisions générales Bonn 1990 (…) les Etats participants,

(…)

S’efforceront d’atteindre ou de poursuivre les objectifs suivants :

(…)

• des politiques qui favorisent la justice sociale et améliorent les conditions de vie et de travail ;

(…)

Paris 1990 (Une nouvelle ère de démocratie, de paix et d’unité) La liberté économique, la justice sociale et une attitude responsable à l’égard de l’envi- ronnement sont indispensables à la prospérité.

Le libre arbitre individuel, exercé en démocratie et protégé par l’Etat de droit, consti- tue la condition nécessaire d’un développement économique et social fructueux. Nous favoriserons l’activité économique qui respecte et soutient la dignité humaine.

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La liberté et le pluralisme politique doivent être pris en compte dans la poursuite de notre objectif commun, qui est de développer les économies de marché en vue d’une croissance économique durable, de la prospérité, de la justice sociale, du développement de l’emploi et de l’utilisation rationnelle des ressources économiques. Il est important et conforme à notre intérêt à tous que le passage à l’économie de marché réussisse dans les pays qui font des efforts en ce sens. Cette réussite nous permettra de partager les fruits d’un accroissement de la prospérité auquel nous aspirons tous ensemble. Nous coopére- rons pour atteindre ce but.

Istanbul 1999 (Charte de sécurité européenne : nos défis communs) 5. De graves problèmes économiques et la dégradation de l’environnement peuvent aussi avoir de sérieuses conséquences pour notre sécurité. (…) Nous réagirons plus vigoureu- sement à ces menaces en poursuivant les réformes économiques et environnementa- les, en offrant un cadre stable et transparent à l’activité économique et en encourageant l’économie de marché tout en accordant l’attention voulue aux droits économiques et sociaux. (…)

Maastricht 2003 (Stratégie de l’OSCE visant à faire face aux menaces pour la sécurité et la stabilité au XXIe siècle) 14. Les disparités économiques et sociales de plus en plus grandes, l’absence de pri- mauté du droit, une gouvernance déficiente dans les secteurs public et privé, la corrup- tion, la pauvreté très répandue et le chômage élevé sont parmi les facteurs économi- ques qui menacent la stabilité et la sécurité et qui peuvent fournir un terrain favorable à d’autres menaces majeures. La dégradation de l’environnement, l’utilisation non via- ble des ressources naturelles, la mauvaise gestion des déchets et la pollution affectent les systèmes écologiques et ont un impact négatif considérable sur la santé, la prospérité, la stabilité et la sécurité des Etats. Les catastrophes écologiques peuvent également avoir de telles conséquences. Les problèmes de gouvernance associés à ces facteurs ont un effet déstabilisant direct et réduisent en même temps la capacité d’assurer un dévelop- pement économique et social durable ainsi qu’à faire face efficacement aux défis écono- miques et environnementaux et aux menaces pour la sécurité et la stabilité.

Maastricht 2003 (Document sur la stratégie de l’OSCE concernant la dimension éco- nomique et environnementale) 2.2 Renforcer la bonne gouvernance

(…)

Conditions sociales 2.2.13 Une bonne gouvernance et un développement durable supposent des politi- ques et des systèmes qui favorisent le partenariat social et la cohésion sociale. Nous nous emploierons à améliorer l’accès de tous aux prestations sociales de base, telles que des soins de santé d’un coût abordable, les retraites et l’éducation, à assurer un niveau

Les engagements de la dimension humaine de l’OSCE 147 Engagements relatifs aux droits de l’homme applicables à tout Pa rt i e II

adéquat de protection aux groupes socialement vulnérables, et à prévenir l’exclusion sociale.

2.2.14 Nous sommes résolus à prendre des mesures pour améliorer les conditions socia- les, notamment en identifiant et en ciblant les groupes vulnérables de la société, en met- tant en place des systèmes de protection adéquats et efficaces, en renforçant les servi- ces de santé, en créant de nouveaux emplois et en mettant en œuvre des programmes de réinsertion.

2.3 Assurer un développement durable

(…)

2.3.3 Nous appuyons les efforts déployés par les Etats participants pour mettre en œuvre des politiques de réduction de la pauvreté et de développement durable, notamment les programmes nationaux de réduction de la pauvreté dans les pays ayant des économies en transition. Nous encouragerons les organisations et institutions internationales dis- posant du savoir‑faire et des ressources appropriés à fournir les conseils et l’assistance nécessaires.

B. Droits des travailleurs Voir aussi : á II. 4.5 : Travailleurs migrants

Madrid 1983 (Questions relatives à la sécurité en Europe : Principes) Les Etats participants donneront effet au droit qu’ont les travailleurs de créer librement des syndicats et d’y adhérer, au droit qu’ont les syndicats d’exercer librement leurs activités et aux autres droits qu’énoncent les instruments internationaux pertinents. Ils prennent note du fait que ces droits seront exercés dans le respect des lois de l’Etat et conformément aux obligations de l’Etat en vertu du droit international. Ils favoriseront, selon le cas, les contacts et la communication directs entre lesdits syndicats et entre leurs représentants.

Bonn 1990 (Préambule) (…) les Etats participants,

Reconnaissant le lien qui existe entre le pluralisme politique et les économies de mar- ché et ayant souscrit aux principes concernant :

(…)

• une activité économique qui soutienne en conséquence la dignité humaine, qui exclue le travail forcé et la discrimination à l’encontre des travailleurs pour des raisons de race, de sexe, de langue, d’opinion politique ou de religion, et qui ne dénie pas aux tra- vailleurs le droit de créer librement des syndicats indépendants ou d’y adhérer,

S’efforceront d’atteindre ou de poursuivre les objectifs suivants : (…)

148 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Droits économiques, sociaux et culturels

Copenhague 1990 (9) Les Etats participants réaffirment que

(…)

(9.3) — le droit d’association est garanti. Est garanti également le droit de former un syndicat et d’y adhérer librement, sous réserve du droit général dont jouit tout syndi- cat de déterminer ses propres conditions d’adhésion. Ces droits excluent tout contrôle préalable. La liberté d’association des travailleurs, y compris le droit de grève, est garan- tie, sous réserve des limites prévues par la loi et compatibles avec les normes internatio- nales communément admises ;

3.2.3 Droits culturels/héritage culturel Voir aussi : á II. 3.1.10 C : Liberté d’expression culturelle ou artistique á II. 4.1 : Minorités nationales á II. 4.2 : Les Roms et les Sintis á II. 5.3.5 : Promouvoir la tolérance, la compréhension, le respect (y compris la mémoire) á Vol. 2 : Helsinki 1975 (Coopération dans les domaines humanitaires et autres > 3. Coopération et échanges dans le domaine de la culture) á Vol. 2 : Madrid 1983 (Coopération dans les domaines humanitaires et autres > Coopération et échanges dans le domaine de la culture) á Vol. 2 : Vienne 1989 (Coopération dans les domaines humanitaires et autres > Coopération et échanges dans le domaine de la culture) á Vol. 2 : Cracovie 1991 (Principaux domaines de preservation et de cooperation)

Cracovie 1991 (Préambule) [Les Etats participants] prennent note de l’interdépendance qui existe entre la vie cultu- relle et le bien-être des peuples et de l’importance particulière qu’elle représente pour des pays démocratiques évoluant vers une économie de marché. Ils encouragent l’appui tel qu’il est déjà apporté à ces pays et l’aide qu’ils reçoivent actuellement pour préserver et protéger leur patrimoine culturel.

(…)

La diversité culturelle régionale est un reflet de la richesse de l’identité culturelle com- mune des Etats participants. Sa préservation et sa protection contribuent à édifier une Europe démocratique, pacifique et unie.

(…)

II. Culture et patrimoine 10. Les Etats participants se déclarent profondément convaincus que le patrimoine culturel de chacun d’eux constitue une part inaliénable de leur civilisation, de leur mémoire et de leur histoire commune, qui doit être transmise aux générations futures.

Les engagements de la dimension humaine de l’OSCE 149 Engagements relatifs aux droits de l’homme applicables à tout Pa rt i e II

11. Les Etats participants prennent note des définitions des biens archéologiques, du patrimoine culturel et du patrimoine architectural énoncées dans les documents inter- nationaux pertinents du Conseil de l’Europe et de l’UNESCO.

12. Une documentation complète et durable sur les sites, structures, paysages culturels, objets et systèmes culturels, y compris les monuments historiques religieux et culturels, tels qu’ils existent actuellement, est un des éléments les plus importants du patrimoine culturel qui puisse être légué aux générations futures.

13. Les Etats participants reconnaissent en outre comme étant un élément essentiel de leur patrimoine culturel commun le patrimoine constitué par les cultures qui, en rai- son de la barrière des langues, du climat et des distances géographiques, d’une popula- tion limitée ou de circonstances historiques et politiques, n’ont pas été largement acces- sibles.

14. Les Etats participants s’efforceront de protéger le patrimoine culturel, conformé- ment aux accords internationaux pertinents et à leur législation nationale.

15. Les Etats participants tiendront compte des problèmes de préservation, de mise en valeur et de restauration du patrimoine culturel au moment de l’élaboration de leurs politiques de la culture, de l’environnement et de la planification régionale et urbaine. Ils notent en outre qu’il est important de lier chaque projet de préservation à son envi- ronnement urbain ou rural authentique, chaque fois que cela est opportun et possible.

16. Les Etats participants reconnaissent qu’ils doivent rendre leur patrimoine culturel aussi largement accessible que possible. Ce faisant, ils accorderont une attention parti- culière aux besoins des personnes handicapées.

16.1 Ils s’efforceront de protéger le patrimoine contre les dommages que sa gestion et l’accès du public pourraient lui faire subir.

16.2 Ils veilleront à mieux sensibiliser le public à la valeur du patrimoine et à la néces- sité de le protéger.

16.3 Ils s’efforceront, dans tous les cas où cela sera possible, de faciliter l’accès des cher- cheurs et des spécialistes aux documents primaires et aux pièces d’archives.

17. Les Etats participants prennent note avec satisfaction du rôle joué par les associa- tions non gouvernementales dans la prise de conscience de ce que représente le patri- moine et de la nécessité de le protéger.

18. Aux échelons local, régional et national, les associations entre divers groupes venant des secteurs public et privé sont d’une grande utilité pour assurer une préservation effi- cace et représentative du patrimoine culturel. La préservation et l’explication des valeurs et du patrimoine culturel de divers groupes seront facilitées par la participation de ces groupes, ce qui donnera un résultat d’une importance primordiale, la tolérance et le res- pect envers les différentes cultures.

150 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Droits économiques, sociaux et culturels

19. Les Etats participants reconnaissent qu’il est utile et important d’échanger des ren- seignements sur la préservation du patrimoine culturel et que l’utilisation de banques de données, sur le plan national et multilatéral, pourrait apporter une précieuse contribu- tion à cette activité.

Moscou 1991 (35) Les Etats participants réaffirment que la garantie de la liberté de la création artisti- que et la préservation du patrimoine culturel font partie de la dimension humaine de la CSCE. Ils considèrent que l’indépendance de la vie intellectuelle et culturelle est essen- tielle au maintien et au développement de sociétés libres et d’institutions démocrati- ques. Ils rempliront leurs engagements dans le domaine culturel, comme le prévoit le Document du Colloque de Cracovie sur le patrimoine culture (…).

3.2.4 Droit à l’éducation Voir aussi : á Vol. 2 : Helsinki 1975 (Coopération dans les domaines humanitaires et autres > 4. Coopération et échanges dans le domaine de l’éducation) á Vol. 2 : Madrid 1983 (Coopération dans les domaines humanitaires et autres > Coopération et échanges dans le domaine de l’éducation) á Vol. 2 : Vienne 1989 (Coopération dans les domaines humanitaires et autres > Coopération et échanges dans le domaine de l’éducation)

Vienne 1989 (Coopération dans les domaines humanitaires et autres) (63) [Les Etats participants] garantiront à tous, sans distinction de race, de couleur, de sexe, de langue, de religion, d’opinion politique ou autre, d’origine nationale ou sociale, de fortune, de naissance ou de toute autre situation, l’accès aux différents types et niveaux d’éducation.

Copenhague 1990 (34) Les Etats participants s’efforceront de garantir que les personnes appartenant à des minorités nationales, indépendamment de la nécessité d’apprendre la ou les langues officielles de l’Etat concerné, auront la possibilité d’apprendre leur langue maternelle ou de recevoir un enseignement dans cette langue (…)

Dans l’enseignement de l’histoire et de la culture dans les établissements éducatifs, ils tiendront également compte de l’histoire et de la culture des minorités nationales.

Les engagements de la dimension humaine de l’OSCE 151 4. Engagements relatifs aux droits de l’homme se focalisant sur des groupes spécifiques

4.1 Minorités nationales

Voir aussi : á Partie I. 2.3.4 B : Haut-commissaire pour les minorités nationales á Partie II. 4.2 : Les Roms et les Sintis á Partie II. 5 : Engagements relatifs à l’égalité, la tolérance et la non-discrimination

4.1.1 Protection des droits de l’homme et des libertés fondamentales, y compris l’égalité des chances et la non-discrimination Helsinki 1975 (Questions relatives à la sécurité en Europe : 1. (a) Déclaration sur les principes régissant les relations mutuelles des Etats participants ; Principes VII) Les Etats participants sur le territoire desquels existent des minorités natio­nales respec- tent le droit des personnes appartenant à ces minorités à l’égalité devant la loi, leur don- nent l’entière possibilité de jouir effectivement des droits de l’homme et des libertés fon- damentales et, de cette manière, protègent leurs intérêts légitimes dans ce domaine.

Madrid 1983 (Questions relatives à la sécurité en Europe : Principes) [Les Etats participants] confirment qu’il importe de réaliser des progrès constants pour garantir le respect et la jouissance effective des droits des personnes appartenant à des minorités nationales ainsi que de protéger leurs intérêts légitimes, conformément à l’Acte final.

Vienne 1989 (Questions relatives à la sécurité en Europe : Principes) (18) Les Etats participants feront des efforts soutenus pour mettre en œuvre les disposi- tions de l’Acte final et du Document de clôture de Madrid relatives aux minorités natio- nales. Ils prendront toutes les mesures nécessaires sur les plans législatif, administra- tif, judiciaire et autres, et appli­queront les instruments internationaux pertinents par

Les engagements de la dimension humaine de l’OSCE 153 Engagements relatifs aux droits de l’homme se focalisant sur des groupes spécifiques Pa rt i e II

lesquels ils peuvent être liés, pour assurer la protection des droits de l’homme et des libertés fondamentales en faveur des personnes appar­tenant à des minorités nationales sur leur territoire. Ils s’abstiendront de toute discrimination à l’encontre de ces person- nes et favoriseront leurs intérêts et aspirations légitimes dans le domaine des droits de l’homme et des libertés fondamentales.

Copenhague 1990 (30) Les Etats participants reconnaissent que les questions relatives aux minorités nationales ne peuvent être résolues de manière satisfaisante que dans un cadre politi- que démocratique se fondant sur l’Etat de droit, avec un système judiciaire indépendant efficace. Ce cadre garantit le respect total des droits de l’homme et des libertés fonda- mentales, l’égalité des droits et des conditions entre tous les citoyens, la libre expression de tous leurs intérêts et aspirations légitimes, l’application de règles juridiques permet- tant un contrôle efficace des abus de pouvoir exercés par le gouvernement, le pluralisme politique et la tolérance sociale.

(…)

Ils réaffirment aussi que le respect des droits des personnes appartenant à des minori- tés nationales, considérés comme des droits de l’homme reconnus universellement, est un facteur essentiel de la paix, de la justice, de la stabilité et de la démocratie dans les Etats participants.

(31) Les personnes appartenant à des minorités nationales ont le droit d’exercer plei- nement et effectivement leurs droits de l’homme et leurs libertés fondamentales, sans aucune discrimination et en pleine égalité devant la loi.

Les Etats participants adopteront, s’il y a lieu, des mesures particulières ayant pour but de garantir aux personnes appartenant à des minorités nationales la pleine égalité avec les autres citoyens dans l’exercice et la jouissance des droits de l’homme et des libertés fondamentales.

(32) L’appartenance à une minorité nationale est une question relevant d’un choix per- sonnel, et aucun désavantage ne peut résulter d’un tel choix.

(…)

(32.6) Les personnes appartenant à des minorités nationales peuvent, individuellement ainsi qu’en commun avec d’autres membres de leur groupe, exercer leurs droits et en jouir. L’exercice ou le non‑exercice de ces droits ne peut entraîner un désavantage pour une personne appartenant à une minorité nationale.

(…)

(35) Les Etats participants respecteront le droit des personnes appartenant à des mino- rités nationales de participer effectivement aux affaires publiques, notamment aux affai- res concernant la protection et la promotion de l’identité de telles minorités.

154 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Minorités nationales

(…)

(36) Les Etats participants reconnaissent l’importance particulière que revêt le renfor- cement d’une coopération constructive entre eux en ce qui concerne les questions rela- tives aux minorités nationales. Une telle coopération a pour but d’encourager une com- préhension et une confiance mutuelles, des relations amicales et de bon voisinage, la paix, la sécurité et la justice internationales.

Chaque Etat participant favorisera l’instauration d’un climat propice à la compréhen- sion et au respect mutuel, à la coopération et à la solidarité entre tous les citoyens rési- dant sur son territoire, sans distinction d’origine ethnique ou nationale ou de croyance religieuse, et il encouragera la recherche de solutions aux problèmes par un dialogue fondé sur les principes de l’Etat de droit.

(37) Aucun des présents engagements ne peut être interprété comme comportant un droit quelconque d’entreprendre toute activité ou d’accomplir toute action contreve- nant aux buts et principes de la Charte des Nations Unies, aux autres obligations décou- lant du droit international ou aux dispositions de l’Acte final, y compris le principe de l’intégrité territoriale des Etats.

(38) Les Etats participants, dans leurs efforts visant à protéger et à promouvoir les droits des personnes appartenant à des minorités nationales, respecteront pleinement les engagements pris en vertu des conventions en vigueur dans le domaine des droits de l’homme et autres instruments internationaux, et ils examineront la possibilité d’adhé- rer aux conventions en la matière, s’ils ne l’ont pas encore fait, y compris celles accor- dant aux citoyens le droit de déposer une plainte.

(39) Les Etats participants coopéreront étroitement au sein des organisations inter- nationales compétentes auxquelles ils appartiennent, y compris l’Organisation des Nations Unies et, le cas échéant, le Conseil de l’Europe, compte tenu des travaux en cours concernant les questions relatives aux minorités nationales.

Paris 1990 (Une nouvelle ère de démocratie, de paix et d’unité) (…) Nous reconnaissons en outre que les droits des personnes appartenant à des mino- rités nationales doivent être pleinement respectés comme faisant partie des droits de l’homme universels. (…)

Genève 1991 II.

Les Etats participants soulignent l’importance d’un examen approfondi continu de l’exécution des engagements qu’ils ont pris dans le cadre de la CSCE en ce qui concerne les personnes appartenant à des minorités nationales.

Les engagements de la dimension humaine de l’OSCE 155 Engagements relatifs aux droits de l’homme se focalisant sur des groupes spécifiques Pa rt i e II

Ils soulignent que les droits de l’homme et les libertés fondamentales sont le fondement de la protection et de la promotion des droits des personnes appartenant à des minori- tés nationales. (…)

Les problèmes concernant les minorités nationales, de même que le respect des obliga- tions et engagements internationaux relatifs aux droits des personnes appartenant à ces minorités, sont des questions qui appellent à juste titre l’attention de tous les pays et ne constituent donc pas exclusivement une affaire intérieure à chaque Etat.

Ils notent que toutes les différences ethniques, culturelles, linguistiques ou religieuses ne conduisent pas nécessairement à la création de minorités nationales.

III.

(…) les Etats participants estiment que, lorsque sont débattus dans leur pays des problè- mes relatifs à la situation des minorités nationales, ces dernières devraient avoir la pos- sibilité effective de jouer un rôle, conformément aux procédures de prise de décisions propres à chaque Etat. (…)

Ils considèrent que des efforts particuliers doivent être faits pour résoudre les problè- mes spécifiques d’une manière constructive et en ayant recours au dialogue, par voie de négociations et de consultations, en vue d’améliorer la situation des personnes appar- tenant à des minorités nationales. Ils reconnaissent qu’on ne saurait mieux promou- voir le dialogue entre Etats, ainsi qu’entre les Etats et les personnes appartenant à des minorités nationales, qu’en assurant une libre circulation des informations et des idées entre toutes les parties. Ils encouragent les efforts unilatéraux, bilatéraux et multilaté- raux de la part des gouvernements pour étudier les moyens de renforcer l’efficacité de l’exécution par chacun d’eux des engagements pris dans le cadre de la CSCE en ce qui concerne les minorités nationales.

Les Etats participants considèrent en outre que le respect des droits de l’homme et des libertés fondamentales doit être assuré d’une manière non discriminatoire dans l’en- semble de la société. Là où vivent principalement des personnes appartenant à une minorité nationale, les droits de l’homme et les libertés fondamentales des personnes appartenant à cette minorité, des personnes appartenant à la population majoritaire de l’Etat concerné et des personnes appartenant à d’autres minorités nationales résidant dans la même région seront protégés de la même façon.

(…)

Ils autoriseront les autorités compétentes à informer le Bureau des élections libres de toute élection publique prévue sur leur territoire, y compris celles qui seront organi- sées à un niveau inférieur au niveau national. Les Etats participants considéreront favo- rablement, dans la mesure où la loi le permet, la présence d’observateurs à des élections tenues à un niveau inférieur au niveau national, en particulier là où vivent des minorités nationales, et ils s’efforceront de leur en faciliter l’accès sur les lieux.

156 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Minorités nationales

IV.

Les Etats participants créeront les conditions voulues pour que les personnes apparte- nant à des minorités nationales aient des chances égales de prendre une part effective à la vie publique, aux activités économiques et à la construction de leurs sociétés respec- tives.

Conformément aux dispositions du paragraphe 31 du Document de Copenhague, les Etats participants prendront les mesures nécessaires pour prévenir toute discrimina- tion à l’encontre de personnes, notamment en matière d’emploi, de logement et d’édu- cation, sur la base de l’appartenance ou de la non-appartenance à une minorité natio- nale. Dans ce contexte ils offriront, s’ils ne l’ont déjà fait, des moyens de recours effica- ces aux personnes ayant fait l’objet d’un traitement discriminatoire sur la base de leur appartenance ou de leur non-appartenance à une minorité nationale, notamment en offrant aux personnes victimes d’une discrimination un large éventail de recours admi- nistratifs et juridictionnels.

(…)

Les Etats participants affirment que les personnes appartenant à une minorité nationale jouiront des mêmes droits et auront les mêmes devoirs, en tant que citoyens, que le reste de la population.

(…)

Ils reconnaissent que (…) mesures, dans lesquelles sont notamment prises en considé- ration les conditions historiques et territoriales des minorités nationales, sont particu- lièrement importantes là où des institutions démocratiques sont en cours de consolida- tion et où les questions relatives aux minorités nationales appellent une attention par- ticulière.

Conscients de leur diversité de leurs systèmes constitutionnels qui varient d’un pays à l’autre, qui fait qu’une seule et même approche n’est pas nécessairement partout appli- cable, les Etats participants notent avec intérêt que des résultats positifs ont été obtenus par certains d’entre eux, selon des voies démocratiques appropriées, entre autres :

(…)

• par des accords bilatéraux et multilatéraux et d’autres arrangements concernant les minorités nationales ;

(…)

• par la création d’organismes publics de recherche ayant pour mission d’examiner la législation et de diffuser des informations concernant l’égalité des droits et la non-dis- crimination ;

(…)

Les engagements de la dimension humaine de l’OSCE 157 Engagements relatifs aux droits de l’homme se focalisant sur des groupes spécifiques Pa rt i e II

• par l’assistance de l’Etat pour résoudre des difficultés locales liées à des pratiques dis- criminatoires (par exemple, par un service de relations entre citoyens) ;

• par l’encouragement des efforts portant au niveau le plus élémentaire sur les rela- tions sociales entre communautés minoritaires, entre communautés majoritaires et communautés minoritaires et entre communautés voisines ayant une frontière com- mune, afin de prévenir l’apparition de tensions locales et de régler de manière pacifi- que d’éventuels conflits ; et

• en encourageant la mise en place de commissions mixtes permanentes, intergouver- nementales ou régionales, pour faciliter un dialogue constant entre les régions fronta- lières concernées.

Les Etats participants sont d’avis que ces approches, ou d’autres, mises en œuvre séparé- ment ou de manière combinée, peuvent contribuer utilement à l’amélioration de la situa- tion des minorités nationales sur leur territoire.

V.

Les Etats participants respectent le droit des personnes appartenant à des minori- tés nationales d’exercer et de jouir, individuellement ou en commun, de leurs droits de créer et de maintenir des organisations et associations dans leur pays, et de participer à des organisations internationales non gouvernementales.

(…)

VI.

Les Etats participants, préoccupés par la prolifération des actes inspirés par la haine raciale, ethnique et religieuse, par l’antisémitisme, la xénophobie et la discrimination, soulignent leur détermination à condamner sans relâche les actes de cette nature contre quiconque.

Dans ce contexte, ils réaffirment qu’ils ont reconnu les problèmes spécifiques des Roms (Gitans). Ils sont prêts à prendre des mesures efficaces pour assurer une pleine égalité des chances entre les personnes faisant partie des Roms et résidant habituellement sur leur territoire et le reste des résidents. Ils encourageront également la recherche et les études sur les Roms et sur les problèmes particuliers que ceux-ci connaissent.

Ils prendront des mesures efficaces pour promouvoir sur leur territoire la tolérance, la compréhension, l’égalité des chances et les bonnes relations entre personnes d’origines différentes.

(…)

Moscou 1991 (37) Les Etats participants confirment les dispositions et les engagements contenus dans tous les documents de la CSCE, en particulier dans le Document de la Réunion de

158 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Minorités nationales

Copenhague de la Conférence sur la dimension humaine de la CSCE, concernant des questions relatives aux minorités nationales et aux droits des personnes appartenant à ces minorités et dans le Rapport de la Réunion d’experts de Genève de la CSCE sur les minorités nationales et ils demandent la mise en œuvre intégrale et rapide de ces dis- positions et engagements. Ils croient en particulier que l’utilisation des mécanismes et procédures nouveaux et élargis de la CSCE contribueront à renforcer la protection et la promotion des droits des personnes appartenant à des minorités nationales.

Helsinki 1992 (Décisions : II. Le Haut Commissaire de la CSCE pour les minorités natio- nales) (1) Les Etats participants décident de créer un poste de Haut Commissaire pour les minorités nationales.

(…)

Helsinki 1992 (Décisions : VI. La dimension humaine) Les Etats participants

(23) Réaffirment dans les termes les plus vigoureux leur détermination de mettre en œuvre rapidement et fidèlement tous les engagements qu’ils ont contractés dans le cadre de la CSCE (…) pour ce qui est des questions relatives aux minorités nationales et aux droits des personnes appartenant à ces minorités ;

(24) Intensifieront, dans ce contexte, leurs efforts pour assurer aux personnes appar- tenant aux minorités nationales le libre exercice des droits de l’homme et des libertés fondamentales, que ce soit individuellement ou en commun avec d’autres, y compris le droit de pleinement participer, conformément aux procédures démocratiques de prise de décisions appliquées par chaque Etat, à la vie politique, économique, sociale et cultu- relle du pays dans lequel elles vivent (…).

(25) Continueront, par des efforts unilatéraux, bilatéraux et multilatéraux, à rechercher de nouveaux moyens d’améliorer la mise en œuvre des engagements pertinents de la CSCE auxquels ils ont souscrit, y compris ceux qui sont liés à la protection et l’instau- ration de conditions propices à la promotion de l’identité ethnique, culturelle, linguisti- que et religieuse des minorités nationales ;

(26) Traiteront des problèmes de minorités nationales de manière constructive, par des moyens pacifiques et par le dialogue entre toutes les parties intéressées, sur la base des principes et engagements de la CSCE ;

(27) S’abstiendront de réinstaller et condamnent toutes les tentatives visant à réinstaller, par la menace ou l’usage de la force, des personnes dans le but de modifier la composi- tion ethnique de régions situées sur leur territoire ;

(…)

Les engagements de la dimension humaine de l’OSCE 159 Engagements relatifs aux droits de l’homme se focalisant sur des groupes spécifiques Pa rt i e II

Budapest 1994 (Décisions : VIII. La dimension humaine) 21. Les Etats participants confirment leur détermination de faire avancer résolument la mise en œuvre des dispositions de l’Acte final et de tous autres documents de la CSCE relatifs à la protection des droits des personnes appartenant à des minorités nationales. Ils rendent hommage aux travaux du HCMN dans ce domaine.

22. Les Etats participants se félicitent des efforts qui sont faits sur le plan internatio- nal pour mieux protéger les droits des personnes appartenant à des minorités nationa- les. Ils prennent note de l’adoption, au Conseil de l’Europe, d’une Convention‑cadre sur la protection des minorités nationales basée sur les normes de la CSCE en la matière. Ils notent que la Convention est également ouverte – sur invitation – à la signature des Etats qui ne sont pas membres du Conseil de l’Europe ; ils examineront la possibilité de devenir parties à cette Convention.

Lisbonne 1996 (Déclaration de Lisbonne sur un modèle de sécurité commun et global pour l’Europe du XXIe siècle) (10) (…)

• En tant que contribution importante à la sécurité, nous réaffirmons notre détermina- tion de respecter et d’exécuter pleinement tous les engagements que nous avons pris en ce qui concerne les droits de personnes appartenant à une minorité nationale. Nous réaffirmons notre volonté de coopérer pleinement avec le Haut Commissaire pour les minorités nationales. Nous sommes prêts à répondre à la demande de tout Etat parti- cipant cherchant des solutions aux questions de minorités sur son territoire.

(…)

Istanbul 1999 (Déclaration du sommet) 30. Nous réaffirmons notre engagement à veiller à ce que les lois et les politiques res- pectent pleinement les droits des personnes appartenant à des minorités nationales (…). Nous appuyons aussi l’adoption et la mise en œuvre intégrale d’une législation antidis- crimination détaillée pour promouvoir l’égalité des chances pour tous. (…) Nous réaffir- mons que nous intensifierons nos efforts pour appliquer les recommandations du Haut Commissaire pour les minorités nationales.

Istanbul 1999 (Charte de sécurité européenne : III. Notre réponse commune) (19) (…) La protection et la promotion des droits des personnes appartenant à des mino- rités nationales sont des facteurs essentiels pour la démocratie, la paix, la justice et la stabilité à l’intérieur des Etats participants et entre eux. (…) Le plein respect des droits de l’homme, y compris des droits des personnes appartenant à des minorités nationales, outre qu’il est une fin en soi, peut non pas ébranler, mais renforcer l’intégrité territoriale et la souveraineté. (…) Nous condamnons la violence contre une minorité quelle qu’elle soit. Nous nous engageons à prendre des mesures pour promouvoir la tolérance et à édi- fier des sociétés pluralistes dans lesquelles toutes les personnes, quelle que soit leur ori- gine ethnique, jouissent de l’égalité des chances. (…)

160 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Minorités nationales

4.1.2 Participation réelle à la vie publique et politique Copenhague 1990 (35) Les Etats participants respecteront le droit des personnes appartenant à des mino- rités nationales de participer effectivement aux affaires publiques, notamment aux affai- res concernant la protection et la promotion de l’identité de telles minorités.

Les Etats participants prennent note des efforts entrepris pour créer et favoriser des conditions permettant de promouvoir l’identité ethnique, culturelle, linguistique et reli- gieuse de certaines minorités nationales en mettant en place, comme l’un des moyens de réaliser ces objectifs, des administrations locales ou autonomes appropriées, corres- pondant à la situation historique et territoriale spécifique de ces minorités, conformé- ment à la politique de l’Etat concerné.

Genève 1991 III.

Respectant le droit des personnes appartenant à des minorités nationales de prendre effectivement part aux affaires publiques, les Etats participants estiment que, lorsque sont débattus dans leur pays des problèmes relatifs à la situation des minorités natio- nales, ces dernières devraient avoir la possibilité effective de jouer un rôle, conformé- ment aux procédures de prise de décisions propres à chaque Etat. Ils estiment en outre qu’une participation démocratique appropriée des personnes appartenant à des mino- rités nationales, ou de représentants de celles-ci, dans des organes de décision ou de consultation constitue un élément important d’une participation effective aux affaires publiques.

Ils considèrent que des efforts particuliers doivent être faits pour résoudre les problè- mes spécifiques d’une manière constructive et en ayant recours au dialogue, par voie de négociations et de consultations, en vue d’améliorer la situation des personnes apparte- nant à des minorités nationales. Ils reconnaissent qu’on ne saurait mieux promouvoir le dialogue entre Etats, ainsi qu’entre les Etats et les personnes appartenant à des minori- tés nationales, qu’en assurant une libre circulation des informations et des idées entre toutes les parties. (…)

IV.

Les Etats participants créeront les conditions voulues pour que les personnes appartenant à des minorités nationales aient des chances égales de prendre une part effective à la vie publique, aux activités économiques et à la construction de leurs sociétés respectives.

(…)

Conscients de leur diversité de leurs systèmes constitutionnels qui varient d’un pays à l’autre, qui fait qu’une seule et même approche n’est pas nécessairement partout appli-

Les engagements de la dimension humaine de l’OSCE 161 Engagements relatifs aux droits de l’homme se focalisant sur des groupes spécifiques Pa rt i e II

cable, les Etats participants notent avec intérêt que des résultats positifs ont été obtenus par certains d’entre eux, selon des voies démocratiques appropriées, entre autres :

• par des organes de consultation et de décision dans lesquels les minorités sont repré- sentées, en particulier pour ce qui est de l’éducation, de la culture et de la religion ;

• par des organes et assemblées élus chargés des affaires des minorités nationales ;

• par une administration locale et autonome, ainsi que par une autonomie sur une base territoriale, notamment grâce à l’existence d’organes consultatifs, législatifs et exécu- tifs constitués par voie d’élections libres et périodiques ;

• par la gestion autonome, par une minorité nationale, des aspects relatifs à son identité dans les cas où une autonomie sur une base territoriale n’est pas applicable ;

• par des formes décentralisées ou locales d’administration ;

(…)

Les Etats participants sont d’avis que ces approches, ou d’autres, mises en œuvre sépa- rément ou de manière combinée, peuvent contribuer utilement à l’amélioration de la situation des minorités nationales sur leur territoire.

Helsinki 1992 (Décisions : VI. La dimension humaine) Minorités nationales

Les Etats participants

(…)

(24) Intensifieront, dans ce contexte, leurs efforts pour assurer aux personnes appar- tenant aux minorités nationales le libre exercice des droits de l’homme et des libertés fondamentales, que ce soit individuellement ou en commun avec d’autres, y compris le droit de pleinement participer, conformément aux procédures démocratiques de prise de décisions appliquées par chaque Etat, à la vie politique, économique, sociale et cultu- relle du pays dans lequel elles vivent, y compris par la participation démocratique aux instances décisionnelles et aux organes consultatifs existant à l’échelon national, régio- nal et local, notamment par le truchement des partis politiques et des associations ;

Maastricht 2003 (Décisions : Décision No. 4/03 sur la tolérance et la non-discrimina- tion) Le Conseil ministériel,

(…)

10. Veille à la promotion de l’application des engagements de l’OSCE sur les minorités nationales, et reconnaît l’importance des recommandations du Haut Commissaire pour les minorités nationales concernant (…) la participation à la vie publique (…) ;

162 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Minorités nationales

4.1.3 Identité et éducation culturelles, linguistiques et religieuses Helsinki 1975 (Coopération dans les domaines humanitaires et autres) (…) Les Etats participants, reconnaissant la contribution que les minorités nationales ou cultures régionales peuvent apporter à la coopération entre eux dans différents domaines de la culture, se proposent, lorsqu’existent sur leur territoire de telles minorités ou cultu- res, et en tenant compte des intérêts légitimes de leurs membres, de faciliter cette contri- bution.

Vienne 1989 (Questions relatives à la sécurité en Europe : Principes) (19) [Les Etats participants] protégeront les identités ethnique, culturelle, linguistique et religieuse des minorités natio­nales sur leur territoire et créeront des conditions pro- pices à la promotion de ces identités.

(…)

Vienne 1989 (Coopération dans les domaines humanitaires et autres) (45) [Les Etats participants] veilleront à ce que, dans la pratique, des personnes apparte- nant aux minorités nationales ou aux cultures régionales sur leur territoire puissent dif- fuser des informations dans leur langue maternelle, y avoir accès et les échanger.

(…)

(59) [Les Etats participants] veilleront à ce que les personnes appartenant aux minori- tés nationales ou aux cultures régionales sur leur territoire soient en mesure de conser- ver et de développer leur propre culture sous tous ses aspects, y compris la langue, la lit- térature et la religion, et qu’elles puissent préserver leurs monuments et objets culturels et historiques.

(…)

(68) [Les Etats participants] veilleront à ce que les personnes qui appartiennent aux minorités nationales ou aux cultures régionales sur leur territoire puissent dispenser ou recevoir un enseignement portant sur leur propre culture, y compris en laissant les parents transmettre à leurs enfants leur langue, leur religion et leur identité culturelle.

Copenhague 1990 (32) (…) Les personnes appartenant à des minorités nationales ont le droit d’exprimer, de préserver et de développer en toute liberté leur identité ethnique, culturelle, linguis- tique ou religieuse et de maintenir et de développer leur culture sous toutes ses formes, à l’abri de toutes tentatives d’assimilation contre leur volonté. En particulier, elles ont le droit

(32.1) — d’utiliser librement leur langue maternelle tant en privé qu’en public ;

Les engagements de la dimension humaine de l’OSCE 163 Engagements relatifs aux droits de l’homme se focalisant sur des groupes spécifiques Pa rt i e II

(32.2) — de créer et de maintenir leurs propres institutions, organisations ou associa- tions éducatives, culturelles et religieuses, qui peuvent solliciter des contributions finan- cières bénévoles et autres contributions, y compris une aide publique, conformément à la législation nationale ;

(…)

(32.3) — de professer et de pratiquer leur religion, y compris de se procurer, de posséder et d’utiliser des objets religieux, ainsi que de dispenser un enseignement religieux dans leur langue maternelle ;

(…)

(33) Les Etats participants protégeront l’identité ethnique, culturelle, linguistique et religieuse des minorités nationales sur leur territoire et créeront des conditions pro- pres à promouvoir cette identité. Ils prendront les mesures nécessaires à cet effet après avoir procédé à des consultations appropriées, et notamment après s’être mis en rap- port avec les organisations ou associations de ces minorités, conformément à la procé- dure de décision de chaque Etat.

De telles mesures devront être conformes aux principes de l’égalité et de la non‑discri- mination à l’égard des autres citoyens de l’Etat participant concerné.

(34) Les Etats participants s’efforceront de garantir que les personnes appartenant à des minorités nationales, indépendamment de la nécessité d’apprendre la ou les langues officielles de l’Etat concerné, auront la possibilité d’apprendre leur langue maternelle ou de recevoir un enseignement dans cette langue, ainsi que, si c’est possible et nécessaire, de l’utiliser dans leurs rapports avec les pouvoirs publics, conformément à la législation nationale en vigueur.

Dans l’enseignement de l’histoire et de la culture dans les établissements éducatifs, ils tiendront également compte de l’histoire et de la culture des minorités nationales.

(35) Les Etats participants respecteront le droit des personnes appartenant à des mino- rités nationales de participer effectivement aux affaires publiques, notamment aux affai- res concernant la protection et la promotion de l’identité de telles minorités.

Les Etats participants prennent note des efforts entrepris pour créer et favoriser des conditions permettant de promouvoir l’identité ethnique, culturelle, linguistique et reli- gieuse de certaines minorités nationales en mettant en place, comme l’un des moyens de réaliser ces objectifs, des administrations locales ou autonomes appropriées, corres- pondant à la situation historique et territoriale spécifique de ces minorités, conformé- ment à la politique de l’Etat concerné.

Paris 1990 (Une nouvelle ère de démocratie, de paix et d’unité) Nous affirmons que l’identité ethnique, culturelle, linguistique et religieuse des mino- rités nationales sera protégée et que les personnes appartenant à ces minorités ont le

164 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Minorités nationales

droit d’exprimer, de préserver et de développer cette identité sans aucune discrimina- tion et en toute égalité devant la loi.

(…)

Résolus à encourager la contribution précieuse des minorités nationales à la vie de nos sociétés, nous nous engageons à améliorer encore leur situation. Nous réaffirmons notre profonde conviction que des relations amicales entre nos peuples ainsi que la paix, la justice, la stabilité et la démocratie exigent que l’identité ethnique, culturelle, linguisti- que et religieuse des minorités nationales soit protégée et que des conditions favorables à la promotion de cette identité soient créées. (…)

Genève 1991 (IV) (…)

Les Etats participants sont convaincus que la préservation des valeurs et du patrimoine culturel des minorités nationales nécessite la participation des personnes appartenant à ces minorités et que la tolérance et le respect des différentes cultures sont d’une impor- tance primordiale à cet égard. En conséquence ils confirment qu’il importe de s’abstenir de faire obstacle à la production de matériels culturels concernant les minorités natio- nales, y compris par des personnes appartenant à ces minorités.

(…)

Conscients de leur diversité de leurs systèmes constitutionnels qui varient d’un pays à l’autre, qui fait qu’une seule et même approche n’est pas nécessairement partout appli- cable, les Etats participants notent avec intérêt que des résultats positifs ont été obtenus par certains d’entre eux, selon des voies démocratiques appropriées, entre autres :

• par des organes de consultation et de décision dans lesquels les minorités sont repré- sentées, en particulier pour ce qui est de l’éducation, de la culture et de la religion ;

(…)

• par la gestion autonome, par une minorité nationale, des aspects relatifs à son identité dans les cas où une autonomie sur une base territoriale n’est pas applicable ;

(…)

• en offrant aux personnes appartenant à des minorités nationales un enseignement dans leur langue maternelle, d’un type et d’un niveau satisfaisants, compte dûment tenu de l’effectif, des schémas de répartition géographique et des traditions culturelles de ces minorités ;

• par le financement de l’enseignement des langues des minorités dans le grand public en incluant ces langues dans l’enseignement dispensé dans les établissements de for- mation pédagogique, en particulier dans les régions où vivent des personnes apparte- nant à des minorités nationales ;

Les engagements de la dimension humaine de l’OSCE 165 Engagements relatifs aux droits de l’homme se focalisant sur des groupes spécifiques Pa rt i e II

• en prenant, dans les cas où l’enseignement d’une discipline donnée ne peut pas être as- suré sur leur territoire, à tous les niveaux, dans la langue des minorités, les mesu- res nécessaires pour dégager les modalités de reconnaissance des diplômes délivrés à l’étranger et sanctionnant l’accomplissement d’un cycle d’études dans cette langue ;

(…)

• par l’octroi d’une assistance financière et technique aux personnes appartenant à des minorités nationales qui désirent exercer leur droit d’établir leurs propres institutions, organisations et associations éducatives, culturelles et religieuses et d’en assurer le fonctionnement ;

(…)

Les Etats participants sont d’avis que ces approches, ou d’autres, mises en œuvre séparé- ment ou de manière combinée, peuvent contribuer utilement à l’amélioration de la situa- tion des minorités nationales sur leur territoire.

Helsinki 1992 (Décisions : VI. La dimension humaine) Les Etats participants

(…)

(25) Continueront, par des efforts unilatéraux, bilatéraux et multilatéraux, à rechercher de nouveaux moyens d’améliorer la mise en œuvre des engagements pertinents de la CSCE auxquels ils ont souscrit, y compris ceux qui sont liés à la protection et l’instau- ration de conditions propices à la promotion de l’identité ethnique, culturelle, linguisti- que et religieuse des minorités nationales ;

Istanbul 1999 (Déclaration du sommet) 30. Nous réaffirmons notre engagement à veiller à ce que les lois et les politiques res- pectent pleinement les droits des personnes appartenant à des minorités nationales en ce qui concerne en particulier les questions touchant à l’identité culturelle. Nous insis- tons tout particulièrement sur l’obligation de faire en sorte que les lois et les politiques concernant les droits des personnes appartenant à des minorités nationales en matière d’éducation, leurs droits linguistiques et leur droit de participation à la vie publique soient conformes aux normes et aux conventions internationales applicables. (…)

Istanbul 1999 (Charte de sécurité européenne : III. Notre réponse commune) 19. (…) Différents concepts d’autonomie ainsi que d’autres formules esquissées dans les documents susmentionnés, qui sont conformes aux principes de l’OSCE, constituent des moyens de préserver et de promouvoir l’identité ethnique, culturelle, linguistique et religieuse des minorités nationales à l’intérieur d’un Etat existant. (…)

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Maastricht 2003 (Décisions : Décision No 4/03 sur la tolérance et la non-discrimina- tion) Le Conseil ministériel,

(…)

10. Veille à la promotion de l’application des engagements de l’OSCE sur les minori- tés nationales, et reconnaît l’importance des recommandations du Haut Commissaire pour les minorités nationales concernant l’éducation (…) et la langue, notamment sur son usage dans les médias, et des recommandations pertinentes du Représentant pour la liberté des médias à cet égard ;

4.1.4 Contacts humains, médias et presse libres Vienne 1989 (Coopération dans les domaines humanitaires et autres) (31) [Les Etats participants] veilleront à ce que les personnes appartenant aux minori- tés nationales ou aux cultures régionales sur leur territoire aient un statut égal à celui des autres citoyens conformément aux dispositions relatives aux contacts entre les per- sonnes de l’Acte final et des autres documents de la CSCE susmentionnés, et à ce qu’el- les puissent établir et maintenir de tels contacts par des voyages et d’autres moyens de communication, y compris des contacts avec des citoyens d’autres Etats qui ont une ori- gine nationale ou un patrimoine culturel communs.

(…)

(45) [Les Etats participants] veilleront à ce que, dans la pratique, des personnes apparte- nant aux minorités nationales ou aux cultures régionales sur leur territoire puissent dif- fuser des informations dans leur langue maternelle, y avoir accès et les échanger.

Copenhague 1990 (32) (…) Les personnes appartenant à des minorités nationales ont le droit (…)

(32.4) — d’établir et de maintenir des contacts sans entraves entre elles dans leur pays, ainsi que des contacts au‑delà des frontières avec des citoyens d’autres Etats qui ont en commun une origine ethnique ou nationale, un patrimoine culturel ou des croyances religieuses ;

(…)

Genève 1991 IV.

Conscients de leur diversité de leurs systèmes constitutionnels qui varient d’un pays à l’autre, qui fait qu’une seule et même approche n’est pas nécessairement partout appli- cable, les Etats participants notent avec intérêt que des résultats positifs ont été obtenus par certains d’entre eux, selon des voies démocratiques appropriées, entre autres :

Les engagements de la dimension humaine de l’OSCE 167 Engagements relatifs aux droits de l’homme se focalisant sur des groupes spécifiques Pa rt i e II

(…)

• par l’encouragement des efforts portant au niveau le plus élémentaire sur les rela- tions sociales entre communautés minoritaires, entre communautés majoritaires et communautés minoritaires et entre communautés voisines ayant une frontière com- mune, afin de prévenir l’apparition de tensions locales et de régler de manière pacifi- que d’éventuels conflits ; et

• en encourageant la mise en place de commissions mixtes permanentes, intergouver- nementales ou régionales, pour faciliter un dialogue constant entre les régions fronta- lières concernées.

Les Etats participants sont d’avis que ces approches, ou d’autres, mises en œuvre séparé- ment ou de manière combinée, peuvent contribuer utilement à l’amélioration de la situa- tion des minorités nationales sur leur territoire.

(…)

VII.

Convaincus que la protection des droits des personnes appartenant ŕ des minorités nationales exige que la circulation de l’information et l’échange des idées soient libres, les Etats participants soulignent l’importance de la communication entre personnes appartenant ŕ des minorités nationales sans intervention des pouvoirs publics et indé- pendamment des frontières. L’exercice de ces droits ne peut être limité que par les seu- les restrictions qui sont prescrites par la loi et qui sont conformes aux normes inter- nationales. Ils réaffirment qu’aucune personne appartenant ŕ une minorité nationale, simplement parce qu’il appartient ŕ cette minorité, ne fera l’objet de sanctions péna- les ou administratives pour avoir eu des contacts ŕ l’intérieur ou en dehors de son pro- pre pays.

En ce qui concerne l’accès aux médias, ils n’exerceront aucune discrimination contre quiconque pour des raisons ethniques, culturelles, linguistiques ou religieuses. Ils four- niront des informations qui aideront les organes d’information audiovisuels ŕ tenir compte, dans leurs programmes, de l’identité ethnique, culturelle, linguistique et reli- gieuse des minorités nationales.

Ils réaffirment que l’établissement et le maintien de contacts libres entre personnes appartenant à une minorité nationale, ainsi que de contacts transfrontaliers entre des personnes appartenant à une minorité nationale et d’autres personnes avec lesquelles elles ont en commun une origine ethnique ou nationale, un patrimoine culturel ou une croyance religieuse, contribuent à la compréhension mutuelle et favorisent des relations de bon voisinage.

Ils encouragent par conséquent des arrangements de coopération transfrontalière aux niveaux national, régional et local, notamment dans les domaines du passage des fron- taliers, de la préservation et de la visite des monuments et sites culturels et historiques,

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du tourisme, de l’amélioration des communications, de l’économie, des échanges de jeu- nes, de la protection de l’environnement et de la création de commissions régionales.

Ils encourageront aussi la mise en place de dispositifs informels (par exemple des ate- liers, des comités aussi bien à l’intérieur d’un Etat participant qu’entre plusieurs de ces Etats) là où vivent des minorités nationales, pour examiner des questions relatives à ces minorités, procéder à des échanges de données d’expérience et présenter des proposi- tions sur ces questions.

Afin d’améliorer leur information au sujet de la situation réelle des minorités nationa- les, les Etats participants diffuseront à titre volontaire aux autres Etats participants, par l’intermédiaire du Secrétariat de la CSCE, des informations sur la situation des minori- tés nationales vivant sur leur territoire, ainsi que le texte de déclarations relatives à leur politique nationale dans ce domaine.

Les Etats participants confieront au Secrétariat de la CSCE des exemplaires des contri- butions faites en séance plénière de la Réunion d’experts de la CSCE sur les minorités nationales, qu’ils souhaitent rendre accessibles au public.

4.1.5 Rôle des organisations et associations Copenhague 1990 (30) (…) [Les Etats participants] reconnaissent en outre le rôle important que jouent les organisations non gouvernementales, y compris les partis politiques, les syndicats, les organisations des droits de l’homme et les groupements religieux, pour la promotion de la tolérance et de la diversité culturelle et pour la recherche de solutions aux problèmes concernant les minorités nationales.

(…)

(32) (…) Les personnes appartenant à des minorités nationales ont le droit (…)

(32.2) — de créer et de maintenir leurs propres institutions, organisations ou associa- tions éducatives, culturelles et religieuses, qui peuvent solliciter des contributions finan- cières bénévoles et autres contributions, y compris une aide publique, conformément à la législation nationale ;

(…)

(32.6) — de créer et de maintenir des organisations ou associations dans leur pays, et de participer aux activités d’organisations non gouvernementales internationales.

Genève 1991 IV.

Conscients de leur diversité de leurs systèmes constitutionnels qui varient d’un pays à l’autre, qui fait qu’une seule et même approche n’est pas nécessairement partout appli-

Les engagements de la dimension humaine de l’OSCE 169 Engagements relatifs aux droits de l’homme se focalisant sur des groupes spécifiques Pa rt i e II

cable, les Etats participants notent avec intérêt que des résultats positifs ont été obtenus par certains d’entre eux, selon des voies démocratiques appropriées, entre autres :

(…)

• par l’octroi d’une assistance financière et technique aux personnes appartenant à des minorités nationales qui désirent exercer leur droit d’établir leurs propres institutions, organisations et associations éducatives, culturelles et religieuses et d’en assurer le fonctionnement ;

(…)

Les Etats participants sont d’avis que ces approches, ou d’autres (…) peuvent contribuer utilement à l’amélioration de la situation des minorités nationales sur leur territoire.

V.

Les Etats participants respectent le droit des personnes appartenant à des minori- tés nationales d’exercer et de jouir, individuellement ou en commun, de leurs droits de créer et de maintenir des organisations et associations dans leur pays, et de participer à des organisations internationales non gouvernementales.

Les Etats participants réaffirment le droit des personnes appartenant à des minorités nationales de créer et de maintenir leurs propres institutions, organisations et asso- ciations éducatives, culturelles et religieuses, et ne s’opposeront pas à l’exercice de ce droit.

A cet égard, ils reconnaissent le rôle majeur et déterminant que jouent les personnes, les organisations non gouvernementales et les groupes, confessionnels et autres, dans la promotion de la compréhension entre les cultures et dans l’amélioration des relations, à tous les niveaux de la société ainsi que par-delà les frontières internationales.

Ils sont convaincus que l’observation directe et l’expérience de ces organisations, grou- pes et individus peuvent être extrêmement précieuses pour promouvoir l’exécution des engagements de la CSCE relatifs aux personnes appartenant à des minorités nationa- les. Ils encourageront donc les travaux de ces organisations, groupes et individus et n’y feront pas obstacle, et ils accueilleront favorablement leurs contributions en la matière.

4.1.6 Protection contre les crimes de haine Genève 1991 VI

Les Etats participants, préoccupés par la prolifération des actes inspirés par la haine raciale, ethnique et religieuse, par l’antisémitisme, la xénophobie et la discrimination, soulignent leur détermination à condamner sans relâche les actes de cette nature contre quiconque.

170 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Les Roms et les Sintis

Dans ce contexte, ils réaffirment qu’ils ont reconnu les problèmes spécifiques des Roms (Gitans). (…)

De plus, les Etats participants prendront des mesures efficaces et notamment adopte- ront, s’ils ne l’ont déjà fait, conformément à leur système constitutionnel et à leurs obli- gations internationales, des lois pour interdire tout acte constituant une incitation à la violence, motivé par la discrimination, l’hostilité ou la haine de caractère national, racial, ethnique ou religieux, y compris l’antisémitisme, ainsi que des mesures propres à garantir l’application de ces lois.

En outre, pour que l’opinion publique prenne mieux conscience des préjugés et de la haine, que les lois contre les crimes liés à la haine soient mieux appliquées et que, d’une façon générale, les efforts visant à combattre la haine et les préjugés dans la société soient poursuivis, ils s’efforceront de recueillir, de publier régulièrement et de mettre à la disposition du public des données sur les crimes commis sur leur territoire, inspi- rés par des préjugés fondés sur la race, l’identité ethnique ou la religion, y compris les directives suivies pour la collecte de ces données. Ces données ne devraient pas conte- nir d’informations ayant un caractère personnel.

Ils se consulteront et échangeront des points de vue et des informations au niveau inter- national, y compris lors de futures réunions de la CSCE, au sujet des crimes qui sont l’expression des préjugés et de la haine.

4.2 Les Roms et les Sintis

Voir aussi : á I. 2.3.4 A : Bureau des institutions démocratiques et des droits de l’homme (BIDDH) á I. 2.3.4 A. III : Point de contact du BIDDH pour les questions concernant les Roms et les Sinti á II. 5 : Engagements relatifs à l’égalité, la tolérance et la non-discrimination

4.2.1 Protection des droits de l’homme et des libertés fondamentales y compris l’égalité des chances et la non-discrimination Genève 1991 (VI) [Les Etats participants] sont prêts à prendre des mesures efficaces pour assurer une pleine égalité des chances entre les personnes faisant partie des Roms et résidant habi- tuellement sur leur territoire et le reste des résidents. Ils encourageront également la recherche et les études sur les Roms et sur les problèmes particuliers que ceux-ci connaissent.

Budapest 1994 (Décisions : VIII. La dimension humaine) 23. Les Etats participants décident de désigner, à l’intérieur du BIDDH, un point de contact pour les questions concernant les Roms et les Sinti (Tziganes). (…)

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24. Les Etats participants se félicitent des activités relatives aux Roms et aux Sinti (Tzi- ganes) menées dans le cadre d’autres organisations et institutions internationales, en particulier au Conseil de l’Europe.

Istanbul 1999 (Déclaration du sommet) 31. (…) Nous sommes résolus à faire en sorte que les lois et politiques respectent plei- nement les droits des Roms et des Sintis et, si besoin est, à promouvoir une législation antidiscrimination à cet effet. (…)

Istanbul 1999 (Charte de sécurité européenne : III. Notre réponse commune) 20. Nous reconnaissons les difficultés particulières que rencontrent les Roms et les Sin- tis et de la nécessité de prendre des mesures efficaces afin de faire bénéficier de la pleine égalité des chances, conformément aux engagements pris au titre de l’OSCE, les per- sonnes appartenant aux Roms et aux Sintis. Nous renforcerons nos efforts pour faire en sorte que les Roms et les Sintis puissent participer pleinement, sur un pied d’égalité, à la vie de nos sociétés et pour éliminer la discrimination à leur égard.

Maastricht 2003 (Décisions : Décision No. 3/03 sur le Plan d’action visant à améliorer la situation des Roms et des Sintis dans l’espace de l’OSCE) Le Conseil ministériel,

(…)

Reconnaissant les difficultés particulières rencontrées par les Roms et les Sintis et la nécessité d’adopter des mesures efficaces pour éliminer la discrimination à leur encon- tre et réaliser l’égalité des chances, conformément aux engagements de l’OSCE,

Reconnaissant que des progrès ont été accomplis tant dans la législation nationale que dans les programmes d’action et que de considérables efforts ont été déployés par les Etats participants à cette fin,

Conscient dans le même temps qu’une action résolue s’impose encore pour améliorer la situation des Roms et des Sintis dans l’espace de l’OSCE,

(…)

Convaincu que les Roms et les Sintis devraient participer davantage à l’élaboration des politiques les concernant,

Décide d’approuver le Plan d’action visant à améliorer la situation des Roms et des Sin- tis dans l’espace de l’OSCE, qui a été adopté par le Conseil permanent dans sa Décision No 566 en date du 27 novembre 2003, et qui est annexé à la présente décision.

Maastricht 2003 (Décisions : Annexe à la Décision No. 3/03 : Plan d’action visant à améliorer la situation des Roms et des Sintis dans l’espace de l’OSCE) II. Contexte général : pour et avec les Roms

172 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Les Roms et les Sintis

4. Chaque politique ou stratégie nationale de mise en œuvre devrait : 1) répondre aux problèmes, aux besoins et aux priorités réels des communautés roms et sintis ; 2) être globale ; 3) introduire une approche équilibrée et viable combinant objectifs en matière de droits de l’homme et politique sociale ; et 4) impliquer au maximum les Roms dans les politiques qui les concernent. (…) les stratégies de mise en œuvre (…) devraient éga- lement comprendre des mécanismes visant à assurer l’application des politiques natio- nales au niveau local.

5. Les Etats participants et les institutions de l’OSCE compétentes devraient, dans leurs efforts, suivre le principe directeur selon lequel chaque politique et stratégie de mise en œuvre devrait être élaborée et appliquée avec la participation active des communau- tés roms et sintis. Il est indispensable d’assurer la participation effective des Roms et des Sintis à toutes les décisions qui influent sur leur vie. Les Roms et les Sintis devraient œuvrer au développement de ces stratégies au côté des autorités locales, nationales et internationales. De la même façon, les communautés roms devraient être considérées comme des partenaires égaux et partager la responsabilité de l’amélioration de leurs conditions de vie.

6. Il conviendrait de tenir compte, lors de la conception et de la mise en œuvre de l’en- semble des politiques et des programmes, de la situation particulière des femmes roms et sintis. Lorsque des mécanismes consultatifs et autres existent pour faciliter la partici- pation des Roms et des Sintis à de tels processus d’élaboration de politiques, les femmes devraient être en mesure d’y participer sur un pied d’égalité avec les hommes. Les ques- tions intéressant les femmes roms devraient être systématiquement prises en considéra- tion dans toutes les politiques appropriées conçues pour la population dans son ensem- ble.

III. Lutte contre le racisme et la discrimination (…)

Législation et mesures visant à en assurer le respect Mesures recommandées aux Etats participants : (…)

8. Adopter et appliquer une législation efficace pour lutter contre la discrimination raciale et ethnique dans tous les domaines, y compris, notamment, l’accès au logement, à la citoyenneté et à un domicile, à l’éducation, à l’emploi et aux services médicaux et sociaux. Associer les représentants des Roms et des Sintis à la conception, à la mise en œuvre et à l’évaluation de cette législation.

9. La législation en matière de lutte contre la discrimination devrait :

• Interdire la discrimination raciale tant directe qu’indirecte ;

• Imposer des sanctions efficaces, proportionnées et dissuasives pour les actes ou les pratiques discriminatoires ;

Les engagements de la dimension humaine de l’OSCE 173 Engagements relatifs aux droits de l’homme se focalisant sur des groupes spécifiques Pa rt i e II

(…)

• Garantir l’égalité d’accès à des recours efficaces (juridiques, administratifs, procédu- res de conciliation ou de médiation).

10. Il conviendrait de faire en sorte que la législation nationale interdise les actes dis- criminatoires quels qu’ils soient et que tous les cas suspectés de discrimination fassent l’objet d’une enquête approfondie et objective.

11. Créer, selon qu’il conviendra, des institutions spécialisées pour assurer la mise en œuvre d’une telle législation, ainsi que des mécanismes internes pour suivre les progrès accomplis à cet égard et en rendre compte régulièrement et de manière transparente. Encourager la participation de représentants des Roms et des Sintis à de tels organes, dont les travaux devraient être accessibles au public.

12. Elaborer, au besoin, des stratégies ou des plans d’action globaux au niveau natio- nal prévoyant des mesures concrètes pour lutter contre la discrimination dans tous les domaines de la vie, afin d’améliorer la situation des Roms et des Sintis.

13. Evaluer régulièrement, en particulier au niveau local, les résultats de ces stratégies et faire participer les communautés roms et sintis au processus d’évaluation.

(…)

15. Enregistrer, conformément aux normes nationales et internationales relatives à la protection des données, tous les types et cas pertinents de discrimination, afin d’être en mesure de mieux évaluer la situation des Roms et des Sintis et de mieux répondre à leurs besoins.

(…)

17. Veiller à ce que les auteurs d’actes discriminatoires (…) notamment en faisant en sorte que la police mène des enquêtes et prenne des mesures punitives rapidement et de manière efficace.

18. Faciliter l’accès des Roms et des Sintis à la justice par des mesures comme l’aide juri- dique et la fourniture d’informations en romani.

19. Tenir compte, dans l’ensemble des mesures et des programmes, de la situation des femmes roms et sintis, qui sont fréquemment victimes de discriminations tant ethni- ques que sexuelles.

(…)

174 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Les Roms et les Sintis

Médias Mesures recommandées aux Etats participants (…)

37. Afin de renforcer la liberté d’expression, favoriser la formation des journalistes roms et sintis et leur emploi dans les médias, de manière à faciliter un accès plus large des Roms et des Sintis aux médias.

(…)

IX. Point de contact du BIDDH pour les questions concernant les Roms et les Sintis (…)

136. Dans le but de faciliter la mise en œuvre du processus d’examen, les Etats partici- pants de l’OSCE sont invités à fournir des informations sur des faits récents intéressant la situation des Roms et des Sintis et/ou sur des mesures inspirées par le présent Plan d’action, selon le cas lors des réunions sur la mise en œuvre des engagements concer- nant la dimension humaine, en préalable aux conférences d’examen et au Conseil per- manent.

137. Toutes les institutions et structures compétentes de l’OSCE, y compris ses opéra- tions de terrain, continueront à coopérer étroitement avec les Etats participants afin de les aider à mettre en œuvre le présent Plan d’action

4.2.2 Participation réelle à la vie publique et politique Helsinki 1992 (Décisions : VI. La dimension humaine) [Les Etats participants]

(35) Réaffirment (…) la nécessité d’élaborer des programmes appropriés traitant des problèmes de leurs ressortissants respectifs appartenant à des communautés de Roms et à d’autres groupes traditionnellement connus sous le nom de gitans et de créer des conditions leur permettant de bénéficier d’une égalité des chances de participer pleine- ment à la vie de la société, et examineront les moyens de coopérer à cette fin.

Maastricht 2003 (Décisions : Annexe à la Décision No. 3/03 : Plan d’action visant à améliorer la situation des Roms et des Sintis dans l’espace de l’OSCE) VI. Accroissement de la participation à la vie publique et politique (…)

Mesures recommandées aux Etats participants : 87. Les Etats participants doivent veiller de manière volontariste à ce que les Roms et les Sintis disposent, tout comme les autres, des documents nécessaires, y compris de

Les engagements de la dimension humaine de l’OSCE 175 Engagements relatifs aux droits de l’homme se focalisant sur des groupes spécifiques Pa rt i e II

certificats de naissance, de documents d’identité et de certificats d’assurance maladie. Afin de résoudre les problèmes liés à l’absence de documents de base, il est vivement conseillé aux Etats participants d’œuvrer en partenariat avec les organisations civiles roms et sintis.

88. Les Etats participants sont encouragés à tenir compte des conditions fondamentales suivantes pour assurer une participation effective des Roms et des Sintis à la vie publi- que et politique :

• Association à un stade précoce :

Les Roms et les Sintis devraient être associés le plus tôt possible aux phases d’élabora- tion, de mise en œuvre et d’évaluation de toute initiative les concernant ;

• Intégration :

Les Roms et les Sintis devraient être intégrés aux processus consultatifs officiels, et il faudrait assurer l’efficacité des mécanismes mis en place pour les faire participer à l’éla- boration des grandes orientations politiques en les impliquant dans un processus large- ment représentatif ;

• Transparence :

Il conviendrait de diffuser les programmes et les propositions suffisamment longtemps avant les échéances pour la prise de décisions afin que les représentants des commu- nautés roms et sintis puissent les analyser et y contribuer valablement ;

• Participation effective des Roms et des Sintis à tous les niveaux de gouvernement :

La participation des Roms et des Sintis à l’administration locale est indispensable pour la mise en œuvre efficace des politiques qui les concernent ;

• Prise en charge :

Les Roms et les Sintis jouent un rôle essentiel et irremplaçable pour ce qui est de veiller au respect, dans la pratique, de leur droit de participer au processus politique.

89. Les mandataires élus devraient établir des relations de travail étroites avec les com- munautés roms et sintis.

90. Etablir des mécanismes visant à assurer une communication sur un pied d’égalité, directe et ouverte entre les représentants des Roms et des Sintis et les pouvoirs publics, notamment les organes consultatifs.

91. Faciliter l’interaction entre les dirigeants politiques aux niveaux local et national et les divers groupes roms.

92. Organiser des campagnes de sensibilisation afin d’accroître la participation de l’élec- torat rom aux élections.

176 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Les Roms et les Sintis

93. Faire en sorte que les électeurs roms puissent effectuer des choix libres et informés lors des élections.

94. Prendre des mesures visant à garantir aux femmes des droits de vote égaux, notam- ment en veillant à l’application des interdictions concernant le « vote familial ».

95. Encourager les Roms et les Sintis à jouer un rôle plus actif dans les services publics, y compris, au besoin, par l’introduction de mesures spéciales visant à promouvoir leur participation dans ce domaine.

96. Favoriser la représentation des Roms et des Sintis à des postes pourvus par voie d’élections ou de nominations à tous les niveaux du gouvernement.

97. Donner aux Roms et aux Sintis les moyens de participer aux processus décisionnels des Etats et des localités et les intégrer à ces processus en qualité de représentants élus de leurs communautés et en tant que citoyens de leurs pays respectifs.

98. Promouvoir la participation des femmes roms à la vie publique et politique ; les fem- mes roms devraient être en mesure de participer, sur un pied d’égalité avec les hommes, aux mécanismes consultatifs et autres destinés à améliorer l’accès à tous les domaines de la vie publique et politique.

4.2.3 Accès à l’éducation Maastricht 2003 (Décisions : Annexe à la Décision No. 3/03 : Plan d’action visant à améliorer la situation des Roms et des Sintis dans l’espace de l’OSCE) V. Amélioration de l’accès à l’éducation L’éducation est un préalable à la participation des Roms et des Sintis à la vie politi- que, sociale et économique de leurs pays respectifs sur un pied d’égalité avec les autres. L’adoption de mesures vigoureuses et immédiates dans ce domaine, en particulier pour favoriser la fréquentation scolaire et lutter contre l’analphabétisme, devrait bénéficier de la priorité la plus élevée de la part tant des décideurs que des communautés roms et sin- tis. Les politiques d’éducation devraient viser à intégrer les Roms et les Sintis dans l’en- seignement ordinaire en leur permettant d’y accéder pleinement et sur un pied d’égalité à tous les niveaux, tout en restant sensible aux différences culturelles.

Mesures recommandées aux Etats participants : 67. Veiller à ce que la législation nationale comporte des dispositions adéquates qui ban- nissent la ségrégation et la discrimination raciales dans l’enseignement et prévoie des recours efficaces contre les violations de cette législation.

68. Consulter les représentants des Roms et des Sintis lors de la mise au point des politi- ques d’éducation qui les concernent.

Les engagements de la dimension humaine de l’OSCE 177 Engagements relatifs aux droits de l’homme se focalisant sur des groupes spécifiques Pa rt i e II

69. Favoriser activement l’égalité des chances dans le domaine de l’éducation en faveur des enfants roms et sintis, notamment en leur fournissant une aide d’ordre linguistique ou autre.

70. Prendre des mesures spéciales en vue d’améliorer la qualité et l’efficacité de l’ensei- gnement dispensé aux enfants roms et sintis. Encourager une représentation accrue des Roms et des Sintis parmi les enseignants.

71. Faire figurer l’histoire et la culture roms dans les manuels scolaires, en accordant une attention particulière à ce qu’ont vécu les Roms et les Sintis pendant l’Holocauste.

72. Envisager de prendre des mesures destinées à assurer le respect, la protection et la promotion du romani et de son enseignement, ainsi que de la culture rom en tant que partie intégrante du patrimoine culturel rom et sinti.

73. Elaborer et mettre en œuvre de vastes programmes de déségrégation scolaire visant 1) à mettre fin à la pratique qui consiste à orienter systématiquement les enfants roms vers des écoles ou des classes spéciales (par exemple, des écoles pour handicapés men- taux ou des écoles et des classes destinées exclusivement aux enfants roms et sintis) ; et 2) à transférer les enfants roms d’écoles spéciales dans des écoles ordinaires.

74. Allouer des ressources financières pour le transfert des enfants roms dans l’ensei- gnement ordinaire et pour l’élaboration de programmes de soutien scolaire destinés à faciliter le passage à l’enseignement ordinaire.

75. Faciliter l’accès des enfants roms à l’enseignement ordinaire en prenant des mesures consistant par exemple :

a) A éliminer les manifestations de préjugés à l’encontre des Roms et des Sintis dans les écoles ;

b) A former les éducateurs à l’enseignement multiculturel et à la façon de traiter les clas- ses pluriethniques ;

c) A élaborer des stratégies visant à obtenir un soutien plus étendu de la communauté en faveur de la déségrégation scolaire ;

e) A fournir un appui pour combler le fossé entre les enfants roms et sintis et les autres élèves, notamment grâce à des programmes préscolaires destinés à préparer les enfants roms et sintis à l’école primaire ;

f) A fournir un soutien pour accroître le nombre des médiateurs/instructeurs et des enseignants issus des communautés roms.

76. Elaborer et mettre en œuvre des programmes d’enseignement antiracistes à l’inten- tion des écoles et des programmes contre le racisme à l’intention des médias.

178 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Les Roms et les Sintis

77. Elaborer des politiques abordant tout l’éventail des facteurs qui contribuent à une faible fréquentation scolaire des enfants roms et sintis. Il s’agit, notamment, de faire en sorte que les familles roms et sintis disposent, comme les autres, de la documentation nécessaire pour les inscriptions.

78. Envisager d’élaborer des programmes de soutien social en faveur des familles roms à faible revenu qui ont des enfants d’âge scolaire.

79. Favoriser une fréquentation scolaire régulière des enfants roms et sintis, grâce notamment à une participation de la famille et des médiateurs sociaux, à la promotion de la sensibilisation des parents et des notables des communautés roms et sintis à la res- ponsabilité qu’ils ont de faciliter la fréquentation scolaire des enfants et, en particulier, à un accès égal à l’enseignement pour les filles.

80. Veiller avec une attention particulière à offrir aux jeunes filles roms et sintis des chances égales en matière d’enseignement et d’insertion sociale, et élaborer des pro- grammes destinés à remédier à leur taux d’abandon scolaire particulièrement élevé.

81. Envisager d’élaborer des programmes appropriés à l’intention de ceux qui n’ont pas achevé l’école primaire ou qui sont illettrés.

82. Elaborer, au besoin, des programmes de bourses à l’intention des étudiants roms et encourager ceux‑ci à participer davantage aux programmes de bourses existants.

83. Encourager l’initiation à l’informatique des Roms et des Sintis grâce à la création de sites web d’information.

84. Evaluer périodiquement l’efficacité des politiques d’éducation.

4.2.4 Questions socio-économiques Istanbul 1999 (Déclaration du sommet) 31. (…) Nous soulignons qu’il faut porter l’attention voulue aux problèmes de l’exclusion sociale des Roms et des Sintis. (…)

Maastricht 2003 (Décisions : Annexe à la Décision No. 3/03 : Plan d’action visant à améliorer la situation des Roms et des Sintis dans l’espace de l’OSCE) IV. Traitement des problèmes socio-économiques (…)

Conditions de logement et de vie Mesures recommandées aux Etats participants : 43. Mettre en place des mécanismes et des procédures institutionnelles pour préciser les droits de propriété, régler les questions de possession et régulariser le statut juridi- que des Roms et des Sintis vivant dans des conditions de légalité incertaines (par exem- ple, quartiers roms sans titres fonciers ou non englobés dans les plans d’urbanisme de

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la localité principale ; familles et logements sans statut de résidence légale dans des éta- blissements où les gens vivent de facto depuis des décennies).

44. Associer les Roms et les Sintis à la définition des politiques de logement et aux pro- jets de construction, de revitalisation et/ou d’entretien de logements sociaux qui leur sont destinés. Veiller à ce que les projets immobiliers ne favorisent pas la ségrégation ethnique et/ou raciale.

45. Envisager la possibilité de garantir des prêts aux Etats participants, qui pourront provenir d’organisations internationales et d’institutions financières, en faveur des pro- jets de logements destinés aux groupes sociaux à faibles revenus.

46. Promouvoir l’option des programmes de logement en copropriété pour les commu- nautés roms et dispenser une formation appropriée à l’entretien des installations.

(…)

Chômage et problèmes économiques Mesures recommandées aux Etats participants : 48. Favoriser une représentation accrue des Roms et des Sintis qualifiés dans les emplois publics.

49. Etablir des programmes de formation afin de préparer les groupes sous-représentés comme les Roms et les Sintis à occuper un emploi dans l’administration publique locale et dans d’autres secteurs, et élaborer des politiques pour encourager l’emploi des diplô- més de ces programmes comme fonctionnaires.

50. Réévaluer l’impact des programmes d’emplois subventionnés, en accordant une attention particulière à leur volet formation, afin de veiller à ce que celui‑ci vise à accroî- tre la compétitivité des Roms et des Sintis sur le marché du travail.

51. Elaborer des politiques et des programmes, notamment en matière de formation pro- fessionnelle, pour améliorer les compétences monnayables et l’employabilité des Roms et des Sintis, en particulier des jeunes et des femmes.

52. Adopter des politiques sociales renforçant les incitations à recherche un emploi, en tant que moyen d’éviter durablement une dépendance à l’égard des prestations socia- les.

(…)

Soins médicaux Mesures recommandées aux Etats participants : 58. Veiller à ce que les Roms et les Sintis aient accès aux soins médicaux de manière non discriminatoire.

180 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Les Roms et les Sintis

59. Favoriser la sensibilisation aux besoins particuliers de la population rom et sinti parmi le personnel de santé.

60. S’attaquer au problème de l’incidence élevée de la maladie et de la malnutrition parmi les communautés roms.

61. Encourager l’accès des Roms et des Sintis aux services généraux de santé publique à un stade précoce grâce aux mesures suivantes :

a) Informer les Roms et les Sintis de l’existence de ces services et leur dire comment s’en prévaloir ;

b) Accroître la confiance des Roms et des Sintis dans les prestataires publics de soins médicaux, notamment en punissant les cas de discrimination directe ou indirecte dont ont été victimes des Roms et des Sintis ; en formant les agents de santé afin qu’ils com- prennent les aspects pertinents de la culture rom ; et en soutenant les médiateurs qui peuvent jouer un rôle important dans le comblement du fossé entre les communautés roms et les prestataires publics de services médicaux.

62. Accorder une attention particulière à la santé des femmes et des jeunes filles grâce, notamment, aux mesures suivantes :

a) Promouvoir et/ou élaborer des programmes visant à fournir des informations sur les soins médicaux (y compris la nutrition, les soins néonatals et la violence domestique, etc.) ;

b) Améliorer l’accès aux soins gynécologiques, y compris les services de soins prénatals, d’accouchement et de soins postnatals, grâce, notamment, à la fourniture de renseigne- ments et de formations.

63. Accorder une attention particulière à la santé des enfants roms et sintis, grâce à la fourniture de soins pédiatriques appropriés, y compris les mesures préventives consis- tant, par exemple, à proposer des vaccinations dans les établissements roms.

4.2.5 Racisme et discrimination A. Lutte contre les stéréotypes Copenhague 1990 (40) Les Etats participants condamnent clairement et sans équivoque le totalitarisme, la haine raciale et ethnique, l’antisémitisme, la xénophobie et toute discrimination contre quiconque, ainsi que toute persécution pour des raisons religieuses et idéologi- ques. Dans ce contexte, ils reconnaissent en outre les problèmes spécifiques des Roms (gitans). (…)

Genève 1991 (VI) Les Etats participants, préoccupés par la prolifération des actes inspirés par la haine raciale, ethnique et religieuse, par l’antisémitisme, la xénophobie et la discrimination,

Les engagements de la dimension humaine de l’OSCE 181 Engagements relatifs aux droits de l’homme se focalisant sur des groupes spécifiques Pa rt i e II

soulignent leur détermination à condamner sans relâche les actes de cette nature contre quiconque.

Dans ce contexte, ils réaffirment qu’ils ont reconnu les problèmes spécifiques des Roms (Gitans). Ils sont prêts à prendre des mesures efficaces pour assurer une pleine égalité des chances entre les personnes faisant partie des Roms et résidant habituellement sur leur territoire et le reste des résidents. Ils encourageront également la recherche et les études sur les Roms et sur les problèmes particuliers que ceux-ci connaissent.

Istanbul 1999 (Déclaration du sommet) 31. Nous déplorons les actes de violence et autres manifestations de racisme et de dis- crimination à l’encontre des minorités, y compris des Roms et des Sintis. (…)

Maastricht 2003 (Décisions : Annexe à la Décision No. 3/03 : Plan d’action visant à améliorer la situation des Roms et des Sintis dans l’espace de l’OSCE) III. Lutte contre le racisme et la discrimination (…)

Législation et mesures visant à en assurer le respect Mesures recommandées aux Etats participants : 7. Envisager de ratifier dès que possible, s’ils ne l’ont pas déjà fait, les traités internatio- naux appropriés, notamment la Convention internationale sur l’élimination de toutes les formes de discrimination raciale.

(…)

14. S’employer, en encourageant un dialogue ou des consultations dignes de ce nom, ou par d’autres moyens appropriés, à améliorer les relations entre les Roms et les Sintis et le reste de la population, afin de promouvoir la tolérance et de surmonter les préjugés et les stéréotypes de part et d’autre.

(…)

Police Mesures recommandées aux Etats participants : 26. Elaborer des politiques visant à sensibiliser davantage les institutions chargées de l’application des lois à la situation des Roms et des Sintis et à lutter contre les préjugés et les stéréotypes.

27. Elaborer des programmes de formation visant à prévenir un usage excessif de la force et à promouvoir une meilleure connaissance et le respect des droits de l’homme.

28. Elaborer des politiques destinées 1) à améliorer les relations entre les communau- tés roms et sintis et la police, afin de prévenir les abus et la violence policière à l’égard

182 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Les Roms et les Sintis

des Roms et des Sintis ; et 2) améliorer la confiance dans la police parmi les Roms et les Sintis.

(…)

30. Evaluer le décalage entre les normes internationales et les pratiques nationales actuelles en matière de police en consultation avec les forces nationales de police, les ONG et les représentants des communautés roms et sintis.

31. Elaborer, le cas échéant et en partenariat étroit avec les organisations internationa- les et les ONG roms, des déclarations de politique générale, des codes de conduite, des manuels de recommandations pratiques et des programmes de formation.

32. Encourager les Roms et les Sintis à travailler dans des institutions chargées de l’ap- plication des lois en tant que moyen durable de promouvoir la tolérance et la diversité.

(…)

Médias Mesures recommandées aux Etats participants : 36. Lancer des campagnes d’information et de sensibilisation dans le but de lutter contre les préjugés et les stéréotypes concernant les Roms et les Sintis.

(…)

38. Encourager les médias à montrer les aspects positifs de la vie des Roms et à en pré- senter un tableau équilibré, à éviter les stéréotypes roms et sintis et à s’abstenir d’atti- ser les tensions entre les divers groupes ethniques. Organiser des tables rondes entre représentants des médias et représentants des Roms et des Sintis afin de promouvoir ces objectifs.

B. Protection contre les crimes de haine Maastricht 2003 (Décisions : Annexe à la Décision No. 3/03 : Plan d’action visant à améliorer la situation des Roms et des Sintis dans l’espace de l’OSCE) III. Lutte contre le racisme et la discrimination (…)

Législation et mesures visant à en assurer le respect Mesures recommandées aux Etats participants : (…)

9. La législation en matière de lutte contre la discrimination devrait :

(…)

Les engagements de la dimension humaine de l’OSCE 183 Engagements relatifs aux droits de l’homme se focalisant sur des groupes spécifiques Pa rt i e II

• Imposer des peines plus lourdes pour les crimes à motivation raciale commis tant par des personnes privées que par des agents publics ;

• Garantir l’égalité d’accès à des recours efficaces (juridiques, administratifs, procédu- res de conciliation ou de médiation).

(…)

11. Créer, selon qu’il conviendra, des institutions spécialisées pour assurer la mise en œuvre d’une telle législation, ainsi que des mécanismes internes pour suivre les progrès accomplis à cet égard et en rendre compte régulièrement et de manière transparente. Encourager la participation de représentants des Roms et des Sintis à de tels organes, dont les travaux devraient être accessibles au public.

(…)

16. Enquêter, de manière énergique et efficace, sur les actes de violence commis à l’en- contre des Roms et des Sintis, en particulier lorsque l’on peut raisonnablement penser qu’il s’agissait d’actes à motivation raciale, et poursuivre les responsables, conformé- ment au droit interne et aux normes pertinentes en matière de droits de l’homme.

17. Veiller à ce que les auteurs d’actes discriminatoires ou violents ne restent pas impu- nis, notamment en faisant en sorte que la police mène des enquêtes et prenne des mesu- res punitives rapidement et de manière efficace.

18. Faciliter l’accès des Roms et des Sintis à la justice par des mesures comme l’aide juri- dique et la fourniture d’informations en romani.

(…)

Police Mesures recommandées aux Etats participants : (…)

27. Elaborer des programmes de formation visant à prévenir un usage excessif de la force et à promouvoir une meilleure connaissance et le respect des droits de l’homme.

28. Elaborer des politiques destinées 1) à améliorer les relations entre les communau- tés roms et sintis et la police, afin de prévenir les abus et la violence policière à l’égard des Roms et des Sintis ; et 2) améliorer la confiance dans la police parmi les Roms et les Sintis.

29. Elaborer des politiques et des procédures visant à assurer une réaction efficace de la police aux actes de violence à motivation raciale contre les Roms et les Sintis.

30. Evaluer le décalage entre les normes internationales et les pratiques nationales actuelles en matière de police en consultation avec les forces nationales de police, les ONG et les représentants des communautés roms et sintis.

184 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Les Roms et les Sintis

31. Elaborer, le cas échéant et en partenariat étroit avec les organisations internationa- les et les ONG roms, des déclarations de politique générale, des codes de conduite, des manuels de recommandations pratiques et des programmes de formation.

4.2.6 Situations de crise et d’après crise Maastricht 2003 (Décisions : Annexe à la Décision No. 3/03 : Plan d’action visant à améliorer la situation des Roms et des Sintis dans l’espace de l’OSCE) VII. Les Roms et les Sintis dans des situations de crise et d’après crise (…)

Mesures recommandées aux Etats participants : 107. Prendre l’avis des populations roms et sintis lors de la définition des situations de crise afin de faciliter les procédures adéquates, d’identifier les régions géographiques spécifiques d’où fuient les réfugiés et les personnes déplacées et de veiller à ce qu’il soit tenu compte de la situation particulière des Roms et des Sintis.

108. Veiller à dûment enregistrer les populations roms et sintis en situation de déplace- ment forcé (réfugiés et personnes déplacées à l’intérieur de leur pays) et à leur fournir les documents nécessaires.

109. Les Etats participants devraient veiller à ce que des programmes soient en place pour permettre aux réfugiés et aux personnes déplacées roms et sintis de prendre en connaissance de cause une décision concernant des solutions durables à leur situation, notamment pour ce qui est de l’exercice de leurs droits à un retour sûr, dans la dignité et durable. Ces programmes devraient fournir aux réfugiés et aux personnes déplacées à l’intérieur de leur pays des informations concrètes sur chacun de leurs sujets de préoc- cupation et être disponibles dans les langues appropriées.

110. Faire en sorte que les réfugiés roms et sintis soient traités conformément aux nor- mes et aux standards internationaux en matière de protection, et d’une manière non discriminatoire.

111. Tirer parti du rôle du BIDDH dans le domaine de la prévention des conflits et de l’identification des régions dans lesquelles une intervention précoce s’impose, et faire appel à l’expérience du HCMN de l’OSCE à cet égard.

112. Accorder une attention particulière aux besoins des femmes et des enfants roms et sintis dans les situations de crise et d’après crise, notamment en leur donnant accès aux soins de santé, à des logements et à l’éducation.

Les engagements de la dimension humaine de l’OSCE 185 Engagements relatifs aux droits de l’homme se focalisant sur des groupes spécifiques Pa rt i e II

4.3 Populations indigènes

Helsinki 1992 (Décisions : VI. La dimension humaine) Populations autochtones Les Etats participants

(29) Notant que les personnes appartenant à des populations autochtones peuvent ren- contrer des problèmes particuliers dans l’exercice de leurs droits, conviennent que les engagements auxquels ils ont souscrit dans le cadre de la CSCE s’agissant des droits de l’homme et des libertés fondamentales s’appliquent pleinement et sans discrimination à ces personnes.

4.4 Réfugiés, personnes déplacées, retour des migrants et apatrides

Voir aussi : á II. 3.1.11 : Liberté de mouvement, contacts humains et regroupement familial á II. 3.1.13 : Droit à la nationalité á II. 4.2 : Les Roms et les Sintis á II. 7 : Engagements relatifs au droit humanitaire international

Vienne 1989 (Questions relatives à la sécurité en Europe : Principes) (22) [Les Etats participants] (…) ils autoriseront tous les réfugiés qui le désirent à retour- ner chez eux en toute sécurité.

Helsinki 1992 (Déclaration du sommet) 14. En temps de conflit, la satisfaction des besoins fondamentaux de l’être humain est en grand péril. (…) Nous avons conscience que les problèmes de réfugiés causés par ces conflits exigent notre coopération à tous. Nous exprimons notre soutien et notre soli- darité aux pays auxquels les problèmes de réfugiés résultant de ces conflits imposent la plus lourde charge. Dans ce contexte, nous reconnaissons qu’une coopération et une action concertée s’imposent.

Helsinki 1992 (Décisions : VI. La dimension humaine) Les Etats participants

(39) Expriment leur inquiétude au sujet du problème des réfugiés et des personnes déplacées ;

(40) Soulignent qu’il est important de prévenir les situations susceptibles de provoquer des flux massifs de réfugiés et de personnes déplacées et insistent sur la nécessité de définir et d’étudier les causes fondamentales des déplacements et des migrations invo- lontaires ;

186 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Réfugiés, personnes déplacées, retour des migrants et apatrides

(41) Reconnaissent que le cas des réfugiés et des personnes déplacées qui affluent massi- vement doit faire l’objet d’une coopération internationale ;

(42) Reconnaissent que le déplacement est souvent le résultat de violations des engage- ments de la CSCE, y compris de ceux qui intéressent la dimension humaine ;

(43) Réaffirment l’importance des normes et instruments internationaux en vigueur pour la protection des réfugiés et l’aide à leur apporter et envisageront d’adhérer à la Convention relative au statut des réfugiés et au Protocole qui s’y rattache, s’ils ne sont pas encore parties à ces instruments ;

(44) Reconnaissent le rôle important que jouent le Haut Commissaire des Nations Unies pour les réfugiés et le Comité international de la Croix‑Rouge, ainsi que les organisa- tions humanitaires non gouvernementales, lorsqu’il s’agit d’assurer protection et assis- tance aux réfugiés et aux personnes déplacées ;

(45) Notent avec satisfaction et appuient les mesures unilatérales, bilatérales et multila- térales prises pour assurer protection et assistance aux réfugiés et aux personnes dépla- cées dans le but de trouver des solutions durables ;

Stockholm 1992 (Décisions : 2. La CSCE en tant que communauté de valeurs) Le problème de plus en plus grave des réfugiés et des personnes déplacées préoccupe au plus haut point tous les Etats participants, en particulier dans le contexte de conflits qui mettent en très grand danger la satisfaction des besoins fondamentaux de l’homme. Les ministres ont déploré la situation critique des populations civiles les plus touchées par de tels conflits et ont exhorté tous les Etats participants à participer à un effort concerté pour partager le fardeau commun. Tous les gouvernements sont responsables l’un envers l’autre de leur conduite à l’égard de leurs citoyens et de leurs voisins. Les auteurs de crimes et actes de guerre commis en violation du droit humanitaire interna- tional doivent être tenus pour personnellement responsables.

Budapest 1994 (Décisions : VIII. La dimension humaine) 32. Les Etats participants s’inquiètent des mouvements migratoires massifs dans la région de la CSCE, qui font des millions de réfugiés et de personnes déplacées, en raison principalement des guerres et des conflits armés, des guerres civiles et des violations graves des droits de l’homme. (…) ils décident d’élargir leur coopération avec les orga- nismes internationaux appropriés dans ce domaine de la migration. (…)

Lisbonne 1996 (Déclaration du sommet) 9. (…) Parmi les problèmes aigus relevant de la dimension humaine, les violations conti- nues des droits de l’homme, comme par exemple les migrations involontaires (…) conti- nuent à mettre en péril la stabilité dans la région de l’OSCE. Nous sommes résolus à continuer de nous attaquer à ces problèmes.

10. Eu égard aux récentes tragédies de réfugiés dans la région de l’OSCE et tenant compte de la question des migrations forcées, nous condamnons à nouveau toute politi-

Les engagements de la dimension humaine de l’OSCE 187 Engagements relatifs aux droits de l’homme se focalisant sur des groupes spécifiques Pa rt i e II

que de “purification ethnique” ou d’expulsion massive et nous engageons à ne pas recou- rir à ces pratiques. Nos Etats faciliteront le retour, dans des conditions de sécurité et de dignité, des réfugiés et des personnes déplacées à l’intérieur d’un pays, conformément aux normes internationales. La réintégration de ces personnes dans leurs lieux d’origine doit être poursuivie sans discrimination. (…)

Istanbul 1999 (Déclaration du sommet) 26. (…) Nous sommes résolus à garantir intégralement aux personnes appartenant à des minorités le droit de vote et à faciliter aux réfugiés l’exercice du droit de participer aux élections se tenant dans leur pays d’origine. (…)

Istanbul 1999 (Charte de sécurité européenne : III. Notre réponse commune) 19. (…) Nous réaffirmons que nous reconnaissons que tout individu a droit à une natio- nalité et que personne ne devrait être privée arbitrairement de sa nationalité. Nous nous engageons à poursuivre nos efforts pour garantir que tout le monde puisse exercer ce droit. Nous nous engageons aussi à contribuer à assurer la protection internationale des personnes apatrides.

(…)

22. Nous rejetons toute politique d’épuration ethnique ou d’expulsion massive. Nous réaffirmons notre engagement à respecter le droit de demander asile et à assurer la pro- tection internationale des réfugiés, conformément à la Convention de 1951 relative au statut des réfugiés et à son Protocole de 1967, et à faciliter le retour volontaire, dans la dignité et la sécurité, des réfugiés et des personnes déplacées à l’intérieur d’un pays. Nous poursuivrons, sans discrimination, la réintégration des réfugiés et des personnes déplacées dans leurs lieux d’origine.

Bucarest 2001 (Annexe à la Décision 1 sur la lutte contre le terrorisme ; Plan d’action de Bucarest pour lutter contre le terrorisme) 15. Renforcement de la législation anti‑terroriste nationale : Etats participants : Ils s’en- gageront à s’acquitter de toutes les obligations qu’ils ont contractés au titre des conven- tions et protocoles relatifs au terrorisme ainsi que de la Convention des Nations Unies contre la criminalité transnationale organisée et des protocoles additionnels à la Convention, en partageant les informations et les méthodes dans cette optique et en examinant les moyens de coopérer dans l’application de ces conventions et protocoles dans le cadre de réunions bilatérales, sous‑régionales ou à l’échelle de l’OSCE.

Maastricht 2003 (Décisions : Décision No 4/03 sur la tolérance et la non-discrimina- tion) Le Conseil ministériel,

(…)

188 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Travailleurs migrants

12. S’engage, dans ce contexte, à combattre, sous réserve de la législation nationale et des engagements internationaux, la discrimination, là où elle existe, à l’encontre des deman- deurs d’asile et des réfugiés, et prie le BIDDH de renforcer ses activités à cet égard ;

13. Prend en considération les Principes directeurs des Nations Unies relatifs au dépla- cement de personnes à l’intérieur de leur propre pays comme cadre utile aux travaux de l’OSCE et aux efforts des Etats participants visant à ce que les déplacements internes bénéficient d’une plus grande attention ;

Sofia 2004 (Décisions : Annexe à la Décision No. 14/04 ; Plan d’action de l’OSCE 2004 pour la promotion de l’égalité entre les sexes) IV. Promotion de la parité des sexes dans les Etats participants (…)

42. (…)

• Comme le recommandent les Principes directeurs relatifs à la protection internatio- nale sur la persécution sexiste au sens de l’article 1A 2) de la Convention de 1951 et du Protocole de 1967 relatif au statut des réfugiés qui s’y rapporte, d’introduire des pro- cédures, si les Etats ne l’ont pas encore fait, afin de veiller à ce qu’il soit dûment tenu compte des demandes présentées par les femmes dans les procédures de détermina- tion du statut de réfugié et à ce que les recours concernant la persécution liée à l’ap- partenance au sexe féminin soient dûment reconnus ;

4.5 Travailleurs migrants

Voir aussi : á II. 3.1.11 : Liberté de mouvement, contacts humains et regroupement familial

Helsinki 1975 (Coopération dans les domaines de l’économie, de la science et de la technique, et de l’environnement) 6. Coopération dans d’autres secteurs (…)

Aspects économiques et sociaux du travail migrant Les Etats participants,

Considérant que les mouvements des travailleurs migrants en Europe ont pris d’impor- tantes dimensions et qu’ils constituent un facteur économique, social et humain impor- tant, aussi bien dans les pays d’accueil que dans les pays d’origine,

Reconnaissant que les migrations de travailleurs ont également entraîné un certain nombre de problèmes économiques, sociaux, humains et autres aussi bien dans les pays d’accueil que dans les pays d’origine,

Les engagements de la dimension humaine de l’OSCE 189 Engagements relatifs aux droits de l’homme se focalisant sur des groupes spécifiques Pa rt i e II

Tenant dûment compte des activités dans ce domaine des organisations interna­tionales compétentes, notamment de l’Organisation internationale du travail, sont d’avis que les problèmes soulevés sur le plan bilatéral par la migration des travailleurs en Europe aussi bien qu’entre les Etats participants doivent être traités par les parties directement intéressées, afin de résoudre ces problèmes dans leur intérêt mutuel, en considération des préoccupations de chaque Etat concerné de tenir dûment compte des nécessités qui résultent de sa situation socio-écono­mique, eu égard à l’obligation de chaque Etat de se conformer aux accords bilaté­raux et multilatéraux auxquels il est partie, et ayant en vue les objectifs suivants :

• encourager les efforts des pays d’origine visant à augmenter les possibilités d’emplois pour leurs nationaux sur leur propre territoire, notamment en dévelop­pant la coopé- ration économique qui se prête à cette fin et qui convient aux pays d’accueil et d’ori- gine intéressés ;

• assurer, grâce à la collaboration du pays d’accueil et du pays d’origine, les conditions dans lesquelles le mouvement ordonné des travailleurs pourrait avoir lieu tout en pro- tégeant leur bien-être personnel et social, et organiser, le cas échéant, le recrutement et une préparation élémentaire linguistique et profession­nelle des travailleurs migrants ;

• assurer l’égalité des droits entre travailleurs migrants et nationaux des pays d’accueil en matière de conditions d’emploi et de travail et en matière de sécurité sociale, et veiller à ce que les travailleurs migrants bénéficient de conditions satis­faisantes de vie et notamment de logement ;

• veiller, autant que possible, à ce que les travailleurs migrants puissent avoir les mêmes possibilités que les nationaux des pays d’accueil de trouver d’autres emplois convena- bles en cas de chômage ;

• considérer avec faveur qu’une formation professionnelle soit dispensée aux travailleurs migrants et que, dans la mesure du possible, la langue du pays d’accueil leur soit ensei- gnée gratuitement, dans le cadre de leur emploi ;

• confirmer le droit des travailleurs migrants de recevoir, dans la mesure du possible, une information régulière dans leur propre langue, concernant aussi bien leur pays d’origine que le pays d’accueil ;

• assurer aux enfants des travailleurs migrants établis dans le pays d’accueil l’accès à l’enseignement qui y est habituellement dispensé, dans les mêmes conditions

• qu’aux enfants de ce pays et permettre qu’ils reçoivent en outre un enseignement de la langue, de la culture, de l’histoire et de la géographie de leur pays ;

• être conscients de ce que les travailleurs migrants, en particulier ceux qui ont acquis des qualifications, en retournant dans leur pays après une certaine période, peuvent contribuer à remédier à l’insuffisance de la main-d’œuvre qualifiée dans le pays d’ori- gine ;

190 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Travailleurs migrants

• favoriser, dans toute la mesure du possible, la réunion des travailleurs migrants avec leurs familles ;

• considérer avec faveur les efforts déployés par les pays d’origine pour attirer l’épargne des travailleurs migrants, afin d’augmenter dans le cadre de leur déve­loppement éco- nomique des possibilités appropriées d’emploi, facilitant ainsi la réintégration de ces travailleurs à leur retour.

Madrid 1983 (Coopération dans les domaines de l’économie, de la science et de la technique et de l’environnement) Dans le contexte des dispositions de l’Acte final relatives au travail migrant en Europe, les Etats participants notent que les développements récents de l’économie mondiale ont eu des répercussions sur la situation des travailleurs migrants. A cet égard, les Etats participants expriment le vœu que pays d’accueil et pays d’origine, guidés par un esprit d’intérêt mutuel et de coopération, intensifient leurs contacts afin d’améliorer encore la situation générale des travailleurs migrants et de leurs familles, entre autres en ce qui concerne la protection de leurs droits humains, y compris leurs droits économiques, sociaux et culturels, en prenant spécialement en considération les problèmes particu- liers des travailleurs migrants de la deuxième génération. Ils s’efforceront aussi d’assurer ou de promouvoir, lorsqu’il existe une demande raisonnable, un enseignement adéquat de la langue et de la culture des pays d’origine.

Les Etats participants recommandent qu’entre autres mesures visant à favoriser la réin- sertion économique et sociale des travailleurs migrants regagnant leurs pays d’origine, soit assuré, par des moyens législatifs appropriés ou des accords réciproques, le paie- ment des pensions acquises ou prévues dans le cadre du système de sécurité sociale auquel ces travailleurs ont été admis dans le pays d’accueil.

Vienne 1989 (Coopération dans les domaines de l’économie, de la science et de la technique, et de l’environnement) (40) Les Etats participants soulignent qu’il importe de mettre effectivement en œuvre les dispositions de l’Acte final et du Document de clôture de Madrid relatives aux tra- vailleurs migrants et à leurs familles en Europe. Ils invitent les pays d’accueil et les pays d’origine à faire des efforts pour améliorer davantage les conditions économiques, socia- les et culturelles, et les autres conditions de vie des travailleurs migrants et de leurs familles séjournant légalement dans les pays d’accueil. Ils recommandent que pays d’ac- cueil et pays d’origine intensifient leur coopération bilatérale dans les domaines perti- nents de manière à faciliter la réinsertion des travailleurs migrants et de leurs familles lors du retour au pays d’origine.

(41) (…) ils examineront favorablement les demandes de réunion des familles et de visi- tes et contacts familiaux concernant les travailleurs migrants originaires d’autres Etats participants et séjournant légalement dans le pays d’accueil.

Les engagements de la dimension humaine de l’OSCE 191 Engagements relatifs aux droits de l’homme se focalisant sur des groupes spécifiques Pa rt i e II

(42) Ils veilleront à ce que les travailleurs migrants originaires d’autres pays participants et leurs familles puissent librement jouir de leur culture nationale et la préserver, tout en ayant accès à celle du pays hôte.

(43) Dans le but de garantir aux enfants des travailleurs migrants les mêmes chances qu’aux enfants de leurs propres nationaux d’accéder à l’éducation sous toutes ses for- mes et à tous les niveaux, les Etats participants se déclarent prêts à prendre les mesures nécessaires pour permettre une meilleure utilisation et une amélioration des possibili- tés d’éducation. En outre, ils encourageront ou facili­teront, en cas de demande raison- nable, la possibilité, pour les enfants de travailleurs migrants, de recevoir un enseigne- ment complémentaire dispensé dans leur langue maternelle.

(44) Ils reconnaissent que les questions relatives aux travailleurs migrants ont une dimension humaine.

Copenhague 1990 (22) Les Etats participants réaffirment que la protection et la promotion des droits des travailleurs migrants ont leur dimension humaine. Dans ce contexte,

(22.1) — ils conviennent que la protection et la promotion des droits des travailleurs migrants concernent tous les Etats participants, et qu’à ce titre ils devraient être exami- nés dans le processus de la CSCE ;

(22.2) — ils réaffirment leur engagement d’appliquer intégralement dans leur législation nationale les droits des travailleurs migrants prévus dans les accords internationaux auxquels ils sont parties ;

(22.3) — ils considèrent que, dans les futurs instruments internationaux concernant les droits des travailleurs migrants, ils devraient tenir compte du fait que cette question est importante pour eux tous ;

Paris 1990 (Une nouvelle ère de démocratie, de paix et d’unité) Nous reconnaissons que les questions relatives aux travailleurs migrants et à leur famille résidant légalement dans les pays d’accueil comportent des aspects économiques, cultu- rels et sociaux, ainsi que leur propre dimension humaine. Nous réaffirmons que la pro- tection et la promotion de leurs droits, ainsi que le respect des obligations internationales correspondantes, sont notre préoccupation commune.

Moscou 1991 (38) Les Etats participants reconnaissent la nécessité de veiller à ce que les droits des travailleurs migrants et de leur famille résidant légalement sur le territoire des Etats participants soient respectés et ils soulignent le droit de ces personnes d’exprimer libre- ment leurs caractères ethniques, culturels, religieux et linguistiques. L’exercice de ces droits ne peut faire l’objet de restrictions que si celles-ci sont prévues par la loi et com- patibles avec les normes internationales.

192 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Travailleurs migrants

(38.1) Ils condamnent tous les actes de discrimination fondée sur la race, la couleur ou l’origine ethnique, d’intolérance et de xénophobie commis à l’encontre des travailleurs migrants. Ils prendront, conformément à leur législation nationale et à leurs obligations internationales, des mesures efficaces pour promouvoir la tolérance, la compréhension, l’égalité des chances et le respect des droits de l’homme fondamentaux des travailleurs migrants et adopteront, s’ils ne l’ont pas encore fait, des mesures pour interdire tout acte constituant une incitation à la violence, motivé par la discrimination, l’hostilité ou la haine de caractère national, racial, ethnique ou religieux.

(38.2) Ils adopteront des mesures propres à permettre aux travailleurs migrants de pren- dre part à la vie de la société des Etats participants.

(38.3) Ils notent que les problèmes concernant la dimension humaine des travailleurs migrants résidant sur leur territoire pourraient, comme toute autre question relevant de la dimension humaine, être traités dans le cadre du mécanisme de la dimension humaine.

Helsinki 1992 (Décisions : VI. La dimension humaine) Travailleurs migrants Les Etats participants

(36) Réaffirment que les droits de l’homme et les libertés fondamentales sont universels, que les travailleurs migrants doivent aussi en jouir où qu’ils vivent et qu’il importe d’ap- pliquer tous les engagements de la CSCE aux travailleurs migrants et à leur famille rési- dant légalement sur le territoire des Etats participants ;

(37) Contribueront à créer des conditions propres à favoriser une plus grande harmonie dans les relations entre les travailleurs migrants et les autres membres de la société de l’Etat participant sur le territoire duquel ils résident légalement. A cette fin, ils s’efforce- ront de proposer entre autres des mesures visant à faciliter aux travailleurs migrants et à leur famille la connaissance de la langue et du mode de vie de l’Etat participant sur le territoire duquel ils résident légalement pour leur permettre de participer à la vie de la société du pays d’accueil ;

(38) S’efforceront, conformément à leurs politiques et à leur législation internes ainsi qu’à leurs obligations internationales, de créer, le cas échéant, des conditions favorables à la promotion de l’égalité des chances des travailleurs migrants résidant et travaillant légalement sur leur territoire en ce qui concerne les conditions de travail, l’éducation, la sécurité sociale et les services de santé, le logement et l’affiliation à un syndicat ainsi que les droits culturels.

Budapest 1994 (Décisions : VIII. La dimension humaine) 29. Ils ont décidé que des mesures appropriées devraient être prises pour mieux préve- nir les attaques racistes et autres manifestations violentes d’intolérance contre les tra- vailleurs migrants et leurs familles.

Les engagements de la dimension humaine de l’OSCE 193 Engagements relatifs aux droits de l’homme se focalisant sur des groupes spécifiques Pa rt i e II

(…)

31. Ils continueront à promouvoir l’intégration des travailleurs migrants dans les socié- tés où ces travailleurs résident légalement. Ils reconnaissent que pour être réussie l’inté- gration doit aussi être souhaitée ardemment par les travailleurs migrants eux‑mêmes et ils ont décidé en conséquence de les encourager à cet égard.

Maastricht 2003 (Décisions : Décision No 4/03 sur la tolérance et la non- discrimination) Le Conseil ministériel,

(…)

11. S’engage à lutter contre la discrimination envers les travailleurs migrants. (…)

Sofia 2004 (Décisions : Annexe à la Décision No. 12/04 sur la tolérance et la non-discri- mination ; Décision du Conseil permanent No. 621 : Tolérance et lutte contre le racisme, la xénophobie et la discrimination) 1. Les Etats participants s’engagent à :

(…)

• Prendre des mesures, conformément à leur droit interne et aux obligations interna- tionales, de lutte contre la discrimination, l’intolérance et la xénophobie envers les migrants et les travailleurs migrants ;

• Envisager d’entreprendre des activités de sensibilisation de l’opinion publique à la contribution enrichissante des migrants et des travailleurs migrants à la société ;

(…)

4.6 Personnes handicapées

Moscou 1991 (41) Les Etats participants décident

(41.1) — d’assurer la protection des droits de l’homme des personnes handicapées ;

(41.2) — de prendre des mesures pour assurer l’égalité des chances pour ces personnes de participer pleinement à la vie de leur société ;

(41.3) — de promouvoir la participation appropriée de ces personnes à la prise de déci- sions dans les domaines qui les concernent ;

(41.4) — d’encourager les services et la formation de travailleurs sociaux pour la réin- sertion professionnelle et sociale des personnes handicapées ;

194 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Enfants

(41.5) — de promouvoir des conditions favorables permettant l’accès des personnes handicapées aux services et bâtiments publics, au logement, aux transports, aux activi- tés culturelles et aux loisirs.

4.7 Enfants

Voir aussi : á II. 3.1.11 : Liberté de mouvement, contacts humains et regroupement familial á II. 3.2.4 : Droit à l’éducation á II. 4.2 : Les Roms et les Sintis á II. 4.4 : Réfugiés, personnes déplacées, retour des migrants et apatrides á II. 4.5 : Travailleurs migrants á II. 6.2 : Prévention de la traite des êtres humains

Copenhague 1990 (13) Les Etats participants décident d’attacher une attention particulière à la reconnais- sance des droits de l’enfant, de ses droits civils et de ses libertés individuelles, de ses droits économiques, sociaux et culturels, et de son droit à une protection particulière contre toute forme de violence et d’exploitation. Ils envisageront d’adhérer à la Conven- tion sur les droits de l’enfant, s’ils ne l’ont pas encore fait, qui a été ouverte à la signature des Etats le 26 janvier 1990. Ils reconnaîtront dans leur législation nationale les droits de l’enfant tels qu’ils sont consignés dans les accords internationaux auxquels ils sont par- ties.

Istanbul 1999 (Déclaration du sommet) 28. En cette année du dixième anniversaire de l’adoption de la Convention relative aux droits de l’enfant et pour donner effet aux engagements que l’OSCE a pris à Copenha- gue, nous nous engageons à promouvoir activement les droits et intérêts des enfants, spécialement pendant et après les conflits. Nous aborderons régulièrement la question des droits de l’enfant dans le travail de l’OSCE (…). Nous porterons une attention par- ticulière au bien‑être physique et psychologique des enfants participant aux conflits armés ou touchés par ces conflits.

Istanbul 1999 (Charte de sécurité européenne : III. Notre réponse commune) 24. Nous prendrons des mesures visant à (…) mettre fin à la violence exercée contre (…) les enfants de même qu’à l’exploitation sexuelle et à toute forme de trafic d’êtres humains. Afin de prévenir ces crimes, nous encouragerons, entre autres, l’adoption de nouvelles lois ou le renforcement de lois existantes pour traduire en justice les auteurs de tels actes et améliorer la protection des victimes. Nous mettrons également au point et appliquerons des mesures visant à promouvoir les droits et intérêts des enfants dans les conflits armés et dans les situations d’après‑conflit, notamment des enfants réfu- giés et déplacés à l’intérieur d’un pays. Nous étudierons les moyens de prévenir l’enrôle- ment forcé ou obligatoire de personnes de moins de 18 ans pour participer à des conflits armés.

Les engagements de la dimension humaine de l’OSCE 195 Engagements relatifs aux droits de l’homme se focalisant sur des groupes spécifiques Pa rt i e II

4.8 Personnel des forces militaires

Budapest 1994 (Décisions : IV. Code de conduite relatif aux aspect politico-militaire de la sécurité) 27. Chaque Etat participant veillera à ce que le recrutement ou le rappel de personnel pour affectation à ses forces militaires, paramilitaires ou de sécurité soit compatible avec ses obligations et engagements en matière de droits de l’homme et de libertés fon- damentales.

28. Les Etats participants feront figurer dans leurs lois ou autres textes pertinents les droits et devoirs des membres des forces armées. Ils étudieront la possibilité de dispen- ses ou de formules de remplacement du service militaire.

(…)

32. Chaque Etat participant fera en sorte que les membres de ses forces militaires, para- militaires et de sécurité puissent jouir des droits de l’homme et des libertés fondamen- tales consacrés par les documents de la CSCE et le droit international et exercer ces droits et libertés conformément aux dispositions constitutionnelles et légales pertinen- tes et compte tenu des nécessités du service.

33. Chaque Etat participant adoptera des mesures légales et administratives appropriées pour protéger les droits de toutes les personnes servant dans ses différentes forces.

4.9 Personnes en détention ou emprisonnées

Voir aussi : á I I. 2.4 : Règle de l’État de droit á II. 3.1.4 : Droit de ne pas être arrêté ou détenu arbitrairement

Vienne 1989 (Questions relatives à la sécurité en Europe : Principes) Les Etats participants

(…)

(23.2) — veilleront à ce que toutes les personnes détenues ou incarcérées soient traitées avec humanité et avec le respect inhérent à la dignité de la personne humaine ;

(23.3) — respecteront l’Ensemble de règles minima des Nations Unies pour le traite- ment des détenus, ainsi que le Code de conduite de l’ONU pour les responsables de l’ap- plication des lois ;

Copenhague 1990 (15) Les Etats participants agiront de manière à faciliter le transfèrement des person- nes condamnées et inviteront les Etats participants qui ne sont pas parties à la Conven-

196 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Personnes en détention ou emprisonnées

tion sur le transfèrement des personnes condamnées, signée à Strasbourg le 21 novem- bre 1983, à envisager d’y adhérer.

Moscou 1991 23) Les Etats participants veilleront à ce que toutes les personnes privées de libertés soient traitées avec humanité et avec le respect dû à la dignité de la personne humaine et appliqueront les normes internationales reconnues relatives à l’administration de la justice et au respect des droits de l’homme dans la personne du détenu.

(23.1) Les Etats participants feront en sorte que

(…)

vi) toute personne, arrêtée ou détenue, ait le droit d’informer – ou de demander à l’auto- rité compétente d’informer – sans délai excessif les personnes de son choix de son arrestation, de sa détention, de son emprisonnement et du lieu où elle se trouve ; toute restriction à l’exercice de ce droit sera prévue par la loi et sera conforme aux normes internationales ;

vii) des mesures efficaces soient adoptées, si tel n’est pas le cas, pour veiller à ce que les autorités chargées de l’application des lois ne tirent indûment profit de la situation d’une personne détenue ou emprisonnée pour lui extorquer des aveux, la contraindre à s’accu- ser de toute autre manière ou à témoigner contre un tiers ;

viii) la durée d’un interrogatoire et les intervalles entre les interrogatoires soient consi- gnés et certifiés conformément à la législation nationale ;

ix) tout détenu – ou son conseil – ait le droit de présenter une requête ou de déposer une plainte au sujet de son traitement, en particulier dans le cas où il aura été victime de tortures ou autres traitements cruels, inhumains ou dégradants, auprès de l’admi- nistration du lieu de détention et des autorités supérieures ainsi que, au besoin, auprès des autorités ayant compétence pour procéder à un réexamen ou pour décider de répa- rations ;

x) une telle demande ou plainte soit examinée rapidement et qu’il y soit donné suite sans retard excessif ; si la demande ou la plainte est rejetée, ou en cas de retard exces- sif, le plaignant aura la faculté d’en saisir l’autorité judiciaire ou toute autre autorité ; aucune personne détenue ou emprisonnée ni aucun plaignant ne subira de préjudice pour avoir formulé une requête ou déposé une plainte ;

(…)

(23.2) Les Etats participants

i) s’efforceront de prendre des mesures, si besoin est, pour améliorer les conditions des personnes détenues ou emprisonnées ;

ii) accorderont une attention particulière à la question des peines de substitution.

Les engagements de la dimension humaine de l’OSCE 197 5. Engagements relatifs à l’égalité, la tolérance et la non-discrimination

5.1 Clauses d’égalité et de non-discrimination

Helsinki 1975 (Questions relatives à la sécurité en Europe : 1. (a) Déclaration sur les principes régissant les relations mutuelles des Etats participants ; Principes VII) VII. Respect des droits de l’homme et des libertés fondamentales, y compris la liberté de pensée, de conscience, de religion ou de conviction Les Etats participants respectent les droits de l’homme et les libertés fonda­mentales (…) sans distinction de race, de sexe, de langue ou de religion.

Vienne 1989 (Questions relatives à la sécurité en Europe : Principes) (13.7) – [Les Etats participants] garantiront à toutes les personnes se trouvant sur leur territoire et ressortissant à leur juridiction le respect des droits de l’homme et des liber- tés fondamentales, sans distinction aucune, notamment de race, de couleur, de sexe, de langue, de religion, d’opinion politique ou autre, d’origine nationale ou sociale, de for- tune, de naissance ou de toute autre situation ;

(13.8) — [Les Etats participants] veilleront à ce qu’aucune personne qui exerce, mani- feste 1’intention d’exercer ou cherche à exercer ces droits et libertés, ni aucun membre de sa famille, ne subisse de ce fait quelque discrimination que ce soit ;

Copenhague 1990 (5) [Les Etats participants] déclarent solennellement que, parmi les principes de la jus- tice essentiels à l’expression complète de la dignité inhérente à la personne humaine et des droits égaux et inaliénables de tous les êtres humains, il faut mentionner les sui- vants :

(…)

Les engagements de la dimension humaine de l’OSCE 199 Engagements relatifs à l’égalité, la tolérance et la non-discrimination Pa rt i e II

(5.9) — tous les individus sont égaux devant la loi et ont droit sans aucune discrimina- tion à une protection égale de la loi. A cet égard, la loi interdit toute discrimination et garantit à toutes les personnes une protection égale et effective contre toute discrimina- tion, quels qu’en soient les motifs ;

(…)

(25.3) — les mesures dérogeant à des obligations seront strictement limitées aux exigen- ces de la situation ;

(25.4) — ces mesures ne comporteront pas de discrimination uniquement fondée sur la race, la couleur, le sexe, la langue, la religion, l’origine sociale ou l’appartenance à une minorité.

(…)

(31) Les personnes appartenant à des minorités nationales ont le droit d’exercer plei- nement et effectivement leurs droits de l’homme et leurs libertés fondamentales, sans aucune discrimination et en pleine égalité devant la loi.

Les Etats participants adopteront, s’il y a lieu, des mesures particulières ayant pour but de garantir aux personnes appartenant à des minorités nationales la pleine égalité avec les autres citoyens dans l’exercice et la jouissance des droits de l’homme et des libertés fondamentales.

5.2 Égalité des droits entre les hommes et les femmes

Madrid 1983 (Questions relatives à la sécurité en Europe : Principes) [Les Etats participants] confirment également qu’il importe d’assurer l’égalité des droits entre l’homme et la femme ; en conséquence, ils conviennent de prendre toutes les mesu- res nécessaires pour promouvoir une participation également effective des hommes et des femmes à la vie politique, économique, sociale et culturelle.

Vienne 1989 (Questions relatives à la sécurité en Europe : Principes) (15) Les Etats participants confirment leur détermination de garantir l’égalité des droits entre l’homme et la femme. En conséquence, ils prendront toutes les mesures nécessai- res, y compris des mesures législatives, pour promouvoir une participation également effective des hommes et des femmes à la vie politique, économique, sociale et culturelle. Ils examineront la possibilité d’adhérer à la Convention sur l’élimination de toutes les formes de discrimination à l’égard des femmes, s’ils ne l’ont pas encore fait.

Moscou 1991 (40) Les Etats participants reconnaissent qu’une égalité entière et véritable entre hom- mes et femmes est un élément fondamental d’une société juste et démocratique basée sur l’Etat de droit. Ils reconnaissent que le plein épanouissement de la société et le bien-

200 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Égalité des droits entre les hommes et les femmes

être de tous ses membres exigent que les hommes et les femmes aient les mêmes possi- bilités de participer pleinement et sur un pied d’égalité à la vie de ces sociétés. Dans ce contexte, ils

(40.1) — veilleront à ce que tous les engagements souscrits dans le cadre de la CSCE au sujet de la protection et de la promotion des droits de l’homme et des libertés fonda- mentales s’appliquent pleinement et sans discrimination fondée sur le sexe ;

(40.2) — se conformeront aux dispositions de la Convention sur l’élimination de toutes les formes de discrimination à l’égard des femmes s’ils sont parties à cette convention et, s’ils ne le sont pas encore, envisageront de ratifier cette convention ou d’y accéder, les Etats qui ont ratifié la Convention ou qui y ont accédé en formulant des réserves envisa- geront de les retirer ;

(40.3) — s’acquitteront effectivement des obligations contenues dans les instruments internationaux auxquels ils sont parties et prendront des mesures appropriées pour appliquer les dispositions des Stratégies prospectives d’action de Nairobi pour la pro- motion de la femme ;

(40.4) — affirmeront que leur objectif est de parvenir à une égalité des chances qui soit non seulement de droit mais aussi de fait entre les hommes et les femmes et prendront effectivement des mesures à cet effet ;

(40.5) — établiront ou renforceront, selon le cas, un dispositif national pour la promo- tion de la femme en vue d’assurer que les programmes et les politiques soient évaluées en fonction de leurs conséquences pour les femmes ;

(40.6) — encourageront l’adoption de mesures visant à assurer effectivement l’égalité totale des chances pour les femmes dans le domaine économique, y compris des poli- tiques et des pratiques d’emploi non discriminatoires, l’égalité d’accès à l’enseignement et à la formation et des mesures visant à concilier l’emploi et les responsabilités fami- liales des hommes et des femmes ; ils s’efforceront aussi de faire en sorte qu’aucun pro- gramme ou politique d’ajustement structurel n’ait un effet discriminatoire à l’encontre des femmes ;

(40.7) — s’efforceront d’éliminer toutes les formes de violence contre les femmes et tou- tes les formes de traite des femmes et d’exploitation de la prostitution, notamment en assurant l’interdiction légale de tels actes et en prenant toutes autres mesures appro- priées ;

(40.8) — encourageront et faciliteront l’égalité des chances pour les femmes de parti- ciper pleinement à l’activité politique et à la vie publique sous tous leurs aspects, ainsi qu’au processus de prise de décisions et à la coopération internationale en général ;

(40.9) — reconnaîtront le rôle capital des femmes et des associations féminines dans les activités nationales et internationales visant à promouvoir et à consolider les droits des femmes en leur fournissant entre autres des services et un appui directs et en favo-

Les engagements de la dimension humaine de l’OSCE 201 Engagements relatifs à l’égalité, la tolérance et la non-discrimination Pa rt i e II

risant une coopération effective entre les gouvernements et ces associations dans le but de parvenir à l’égalité pour les femmes ;

(40.10) — reconnaîtront la valeur de la contribution des femmes à tous les aspects de la vie politique, culturelle, sociale et économique et feront plus largement connaître cette contribution, y compris dans les secteurs non structuré et non rémunéré ;

(40.11) — prendront les mesures pour faciliter l’accès à l’information concernant les femmes et les droits des femmes en vertu du droit international et de la législation interne ;

(40.12) — élaboreront des politiques d’éducation compatibles avec leur système consti- tutionnel pour appuyer la participation des femmes dans tous les domaines des études et du travail, y compris dans les domaines non traditionnels, et encourageront et favo- riseront une meilleure compréhension des problèmes relatifs à l’égalité entre les hom- mes et les femmes ;

(40.13) — organiseront la collecte et l’analyse de données pour évaluer correctement, observer et améliorer la situation des femmes ; ces données ne devraient contenir aucun renseignement personnel.

Istanbul 1999 (Charte de sécurité européenne : III. Notre réponse commune) 23. L’exercice entier et en toute égalité, par les femmes, de leurs droits fondamentaux est indispensable pour rendre l’espace de l’OSCE plus pacifique, plus prospère et plus démocratique. Nous nous engageons à faire de l’égalité entre hommes et femmes une partie intégrante de nos politiques, à la fois au niveau de nos Etats et au sein de l’Orga- nisation.

24. Nous prendrons des mesures visant à éliminer toute forme de discrimination à l’égard des femmes et à mettre fin à la violence exercée contre les femmes et les enfants de même qu’à l’exploitation sexuelle et à toute forme de trafic d’êtres humains. (…)

Maastricht 2003 (Décisions : Décision No 4/03 sur la tolérance et la non-discrimina- tion) Le Conseil ministériel,

(…)

2. Décide d’intensifier les efforts déployés pour renforcer la participation des femmes et leur rôle dans la consolidation de la démocratie et du développement économique et d’envisager d’intégrer les dispositions du Plan d’action de l’OSCE concernant l’égalité

202 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Égalité des droits entre les hommes et les femmes

entre les sexes, le cas échéant, dans les politiques nationales. Décide, en outre, de redou- bler d’efforts pour parvenir à une parité des sexes à tous les niveaux au sein de l’OSCE, en tenant dûment compte, à cet égard, du principe visant à engager du personnel de tous les Etats participants sur une base équitable. (…)

Sofia 2004 (Décisions : Annexe à la Décision No. 14/04 ; Plan d’action de l’OSCE 2004 pour la promotion de l’égalité entre les sexes) Le Conseil ministériel,

(…)

Reconnaissant que l’égalité des droits entre les femmes et les hommes ainsi que la pro- tection de leurs droits fondamentaux sont essentiels à la paix, à une démocratie durable, au développement économique et, de ce fait, à la sécurité et à la stabilité dans la région de l’OSCE,

(…)

Ayant à l’esprit la nécessité qu’une démarche soucieuse de l’égalité entre les sexes soit intégrée de manière appropriée dans les activités menées sous les auspices de l’OSCE et que les Etats participants prennent toutes les mesures nécessaires pour accroître la prise de conscience des différences entre les sexes et promouvoir l’égalité des droits et la participation pleine et égale des femmes et des hommes dans la société, l’objectif étant de promouvoir la pratique de l’égalité et d’une démarche soucieuse d’équité entre les sexes dans l’espace de l’OSCE, qui est essentielle à la sécurité globale,

(…)

Décide d’approuver le Plan d’action de l’OSCE 2004 pour la promotion de l’égalité entre les sexes adopté par le Conseil permanent dans sa Décision No 638 le 2 décembre 2004, et joint en annexe à la présente décision.

Sofia 2004 (Décisions : Annexe à la Décision No. 14/04 ; Plan d’action de l’OSCE 2004 pour la promotion de l’égalité entre les sexes) 3. L’intégration effective d’une démarche soucieuse d’équité entre les sexes dans le but de parvenir à l’égalité entre les femmes et les hommes est importante si l’on veut utiliser pleinement le capital humain dans l’espace de l’OSCE. L’égalité entre les sexes contri- bue à la sécurité globale, qui est l’un des objectifs des activités de l’OSCE dans les trois dimensions. L’intégration d’un souci d’équité entre les sexes est l’un des moyens de contribuer à atteindre cet objectif. L’Organisation devrait donc prendre en compte la

 « Intégrer une démarche soucieuse d’équité entre les sexes, c’est évaluer les incidences pour les femmes et les hommes de toute action envisagée, notamment dans la législation, les politiques ou les programmes, dans tous les secteurs et à tous les niveaux. Il s’agit d’une stratégie visant à incorporer les préoccupations et les expériences des femmes aussi bien que celles des hommes dans l’élaboration, la mise en oeuvre, la surveillance et l’évaluation des politiques et des programmes dans tous les domaines – politique, économique et social – de manière que les femmes et les hommes bénéficient d’avantages égaux et que l’inégalité ne puisse se perpétuer. Le but ultime est d’atteindre l’égalité entre les sexes. » Voir les documents officiels de l’Assemblée générale, cinquante deuxième session, supplément No 3 (A/52/3/Rev.1), chapitre IV, paragraphe 4.

Les engagements de la dimension humaine de l’OSCE 203 Engagements relatifs à l’égalité, la tolérance et la non-discrimination Pa rt i e II

dimension hommes‑femmes dans ses activités, projets et programmes afin de parvenir à l’égalité entre les sexes dans ses propres opérations et dans les Etats participants. Il est de la responsabilité commune de ces derniers, du Président en exercice, du Secrétaire général et des chefs d’institution et de mission de promouvoir l’égalité entre les femmes et les hommes en tant que partie intégrante des politiques et des pratiques de l’OSCE. Dans le cadre de cet effort, il convient de garder à l’esprit que, si l’égalité entre les sexes devient une réalité dans tous les domaines et à tous les niveaux de la société, tant les hommes que les femmes tireront profit d’un tel changement.

(…)

8. L’intégration d’une démarche visant à promouvoir l’égalité entre les hommes et les femmes exige de prêter une attention constante et systématique aux différences entre les sexes (…) en se fondant sur une approche transdimensionnelle, ainsi que des méca- nismes appropriés de suivi et d’examen. (…)

(…)

IV. Promotion de la parité des sexes dans les Etats participants 41. Les Etats participants, individuellement et collectivement, sont responsables au pre- mier chef et redevables envers leurs citoyens de l’application de leurs engagements en matière d’égalité des droits et d’égalité des chances pour les femmes et les hommes. Ils se sont engagés à faire de l’égalité entre hommes et femmes une partie intégrante des politiques à la fois au niveau des Etats et au sein de l’Organisation. Ils veilleront à recou- rir pleinement aux instances appropriées de l’OSCE pour revoir la mise en œuvre de ses engagements concernant l’égalité entre les femmes et les hommes.

42. Il est donc recommandé aux Etats participants :

• De veiller à ce que l’Organisation élabore des politiques assurant une promotion effective de la parité des sexes et que les nouvelles propositions et initiatives tiennent compte des différences entre les sexes ;

• D’établir ou de renforcer les mécanismes existants pour assurer la parité des sexes, notamment en permettant le recours aux services d’une personne ou d’un organe impartial et indépendant, tel qu’un médiateur/commissaire aux droits de l’homme afin d’éliminer la discrimination fondée sur le sexe à l’égard de certains citoyens ;

• D’adhérer aux normes et aux engagements internationaux qu’ils ont pris concernant l’égalité, la non‑discrimination, ainsi que le droit des femmes et des fillettes, et de les appliquer pleinement ;

• De se conformer à la Convention sur l’élimination de toutes les formes de discrimina- tion à l’égard des femmes, s’ils en sont parties, ou s’ils ne le sont pas encore, d’envisa- ger de ratifier cette Convention ou d’y adhérer. Les Etats qui ont ratifié cette Conven- tion ou qui y ont adhéré en formulant des réserves, envisageront de les retirer. Les Etats parties à la Convention sur l’élimination de toutes les formes de discrimination

204 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Lutte contre les actes qui ont pour cause le préjugé, l’intolérance et la haine

à l’égard des femmes sont également priés d’envisager de ratifier le Protocole facultatif à la Convention sur l’élimination de toutes les formes de discrimination à l’égard des femmes ;

• S’ils sont parties à la Convention sur l’élimination de toutes les formes de discrimina- tion à l’égard des femmes, au Pacte international relatif aux droits civils et politiques et/ou au Pacte international relatif aux droits économiques, sociaux et culturels, de faire rapport régulièrement et en temps voulu aux organes respectifs et de faire égale- ment appel à des organisations de femmes pour la préparation de leurs rapports ;

• De prendre d’autres mesures, si nécessaire, afin de garantir un environnement sûr à leurs citoyens et le droit à une protection égale par la loi (…) ;

(…)

• De mettre à profit l’expérience acquise par l’OSCE pour élaborer des politiques et des stratégies transdimensionnelles sur la parité des sexes et d’inclure dans le suivi de ces politiques, notamment, l’utilisation de mécanismes d’analyse et de suivi de la prise en compte des différences entre les sexes pour évaluer l’impact des politiques et straté- gies visant à assurer l’égalité entre les sexes afin d’identifier et de lever les obstacles qui entravent leur pleine application.

5.3 Lutte contre les actes qui ont pour cause le préjugé, l’intolérance et la haine

5.3.1 Provisions générales Vienne 1989 (Questions relatives à la sécurité en Europe : Principes) (16) (…) les Etats participants, entre autres,

(16.1) — prendront des mesures efficaces pour empêcher et éliminer toute discrimi- nation fondée sur la religion ou la croyance, à l’encontre d’individus ou de commu- nautés, s’agissant de la reconnaissance, de l’exercice et de la jouissance des droits de l’homme et des libertés fon­damentales dans tous les domaines de la vie civile, politi- que, économique, sociale et culturelle, et assureront l’égalité effective des croyants et des non‑croyants ;

Copenhague 1990 (40) Les Etats participants condamnent clairement et sans équivoque le totalitarisme, la haine raciale et ethnique, l’antisémitisme, la xénophobie et toute discrimination contre quiconque, ainsi que toute persécution pour des raisons religieuses et idéologi- ques. Dans ce contexte, ils reconnaissent en outre les problèmes spécifiques des Roms (gitans).

Ils déclarent qu’ils sont fermement décidés à intensifier leurs efforts pour lutter contre ces phénomènes sous toutes leurs formes et, par conséquent

Les engagements de la dimension humaine de l’OSCE 205 Engagements relatifs à l’égalité, la tolérance et la non-discrimination Pa rt i e II

(…)

(40.2) — ils s’engageront à prendre toutes mesures appropriées et proportionnées à leur objet pour protéger les personnes ou groupes de personnes qui pourraient être victimes de menaces ou d’actes de discrimination, d’hostilité ou de violence en raison de leur identité raciale, ethnique, culturelle, linguistique et religieuse, et pour protéger leurs biens ;

Helsinki 1992 (Déclaration du sommet) 12. (…) nous rejetons toute forme de discrimination raciale, ethnique et religieuse. La liberté et la tolérance doivent être enseignées et mises en pratique.

Helsinki 1992 (Décisions : VI. La dimension humaine) Les Etats participants

(30) Expriment leur préoccupation devant les récentes manifestations éhontées d’into- lérance, de discrimination, de nationalisme agressif, de xénophobie, d’antisémitisme et de racisme, et soulignent le rôle capital que jouent la tolérance, la compréhension et la coopération dans l’instauration et le maintien de sociétés démocratiques stables ;

Rome 1993 (Décisions : X. Déclaration sur le nationalisme aggressif, le racisme, le chau- vinisme, la xénophobie et l’antisémitisme) 1. (…) les ministres ont noté avec une profonde préoccupation la multiplication des manifestations de nationalisme agressif, telles que l’expansionnisme territorial, ainsi que de racisme, de chauvinisme, de xénophobie et d’antisémitisme. Ces manifestations sont en contradiction directe avec les principes et les engagements de la CSCE.

2. Les ministres ont noté en outre que ces phénomènes peuvent conduire à la violence, au séparatisme par la force et à des luttes ethniques si ce n’est, dans les pires cas, à des pratiques barbares de déportation de masse, de purification ethnique et de violence à l’égard de civils innocents.

3. Le nationalisme agressif, le racisme, le chauvinisme, la xénophobie et l’antisémitisme créent des tensions ethniques, politiques et sociales sur le territoire des Etats et entre eux. Ils sapent en outre la stabilité internationale et les efforts entrepris dans le monde entier pour consolider fermement les droits universels de l’homme.

4. Les ministres ont concentré leur attention sur la nécessité de prendre d’urgence des mesures pour faire respecter strictement les normes du droit humanitaire international, y compris la poursuite et le châtiment des auteurs de crimes de guerre et d’autres cri- mes contre l’humanité.

5. Les ministres sont convenus que la CSCE devait jouer un rôle important dans ces efforts. La promotion active de l’égalité de traitement pour tous conformément au droit international et de la protection des minorités nationales fait partie des normes éviden- tes de conduite qui découlent des engagements pris dans le cadre de la CSCE

206 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Lutte contre les actes qui ont pour cause le préjugé, l’intolérance et la haine

Budapest 1994 (Décisions : VIII. La dimension humaine) 25. Les Etats participants condamnent les manifestations d’intolérance, en particu- lier de nationalisme agressif, de racisme, de chauvinisme, de xénophobie et d’antisé- mitisme, et ils continueront à promouvoir les mesures efficaces en vue d’éradiquer ces fléaux de la société. (…) Ils condamnent tous les crimes commis dans l’esprit de ladite «purification ethnique» et continueront à donner leur plein appui au Tribunal interna- tional chargé de poursuivre les personnes présumées responsables de violations gra- ves du droit international humanitaire commises sur le territoire de l’ex-Yougoslavie depuis 1991 (La Haye).

26. Ils approuvent le plan d’action du Conseil de l’Europe contre le racisme, la xénopho- bie, l’antisémitisme et l’intolérance. En donnant suite à la Déclaration du Conseil de Rome, les institutions de la CSCE examineront les possibilités de collaboration avec le Conseil de l’Europe ainsi qu’avec l’ONU et d’autres organisations internationales.

27. Confirmant qu’ils se sont engagés à assurer la liberté de conscience et de religion et à favoriser un climat de tolérance et de respect mutuels entre croyants de différentes confessions aussi bien qu’entre croyants et non‑croyants, ils expriment leur inquiétude au sujet de l’exploitation de la religion à des fins nationalistes agressives.

Lisbonne 1996 (Déclaration du sommet) 9. (…) Parmi les problèmes aigus relevant de la dimension humaine, les violations conti- nues des droits de l’homme, comme par exemple (…) les manifestations de nationalisme agressif, de racisme, de chauvinisme, de xénophobie et d’antisémitisme continuent à mettre en péril la stabilité dans la région de l’OSCE. Nous sommes résolus à continuer de nous attaquer à ces problèmes.

10. Eu égard aux récentes tragédies de réfugiés dans la région de l’OSCE et tenant compte de la question des migrations forcées, nous condamnons à nouveau toute poli- tique de « purification ethnique » ou d’expulsion massive et nous engageons à ne pas recourir à ces pratiques. Nos Etats faciliteront le retour, dans des conditions de sécu- rité et de dignité, des réfugiés et des personnes déplacées à l’intérieur d’un pays, confor- mément aux normes internationales. La réintégration de ces personnes dans leurs lieux d’origine doit être poursuivie sans discrimination.

Istanbul 1999 (Charte de sécurité européenne : III. Notre réponse commune ; IV Nos instruments communs) III. Notre réponse commune (…)

19. (…) Nous nous engageons à contrer les menaces pour la sécurité que constituent les violations des droits de l’homme et des libertés fondamentales, y compris de la liberté de pensée, de conscience, de religion ou de conviction, et les manifestations d’intolé- rance, de nationalisme agressif, de racisme, de chauvinisme, de xénophobie et d’antisé- mitisme.

Les engagements de la dimension humaine de l’OSCE 207 Engagements relatifs à l’égalité, la tolérance et la non-discrimination Pa rt i e II

(…)

22. Nous rejetons toute politique d’épuration ethnique ou d’expulsion massive. (…)

(…)

IV Nos instruments communs (…)

44. Nous nous emploierons à renforcer le rôle de l’OSCE concernant les activités relati- ves à la police civile (…). Ces activités peuvent comprendre les éléments ci‑après :

• Contrôle de la police, afin notamment de l’empêcher de se livrer à des activités impli- quant par exemple une discrimination fondée sur l’identité religieuse ou ethnique ;

(…)

• Création d’un service de police à composition multi‑ethnique et/ou multi‑religieuse, qui puisse jouir de la confiance de toute la population ;

Bucarest 2001 (Annexe à la Décision 1 sur la lutte contre le terrorisme ; Plan d’action de Bucarest pour lutter contre le terrorisme) 11. Etats participants/Conseil permanent/BIDDH/Haut Commissaire pour les mino- rités nationales (HCMN)/Représentant de l’OSCE pour la liberté des médias : (…) Ils assureront l’alerte précoce et donneront des réponses appropriées dans les cas de vio- lence, d’intolérance, d’extrémisme et de discrimination contre ces groupes et, en même temps, œuvreront en faveur du respect de l’état de droit, des valeurs démocratiques et des libertés individuelles. (…)

Porto 2002 (Décisions : Décision No. 6 sur la tolérance et la non-discrimination) Le Conseil ministériel,

(…)

Réaffirmant que la démocratie et la protection des droits de l’homme et des libertés fondamentales sont les garants essentiels de la tolérance et de la non‑discrimination et qu’ils constituent des facteurs importants de stabilité, de sécurité, de coopération et de développement pacifique dans toute la région de l’OSCE, et que réciproquement, la tolérance et la non‑discrimination sont des éléments importants pour la promotion des droits de l’homme,

(…)

Notant que la promotion de la tolérance et de la non‑discrimination peut également contribuer à éliminer le fondement des discours de haine, nationalisme agressif, racisme, chauvinisme, xénophobie, antisémitisme et extrémisme violent,

208 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Lutte contre les actes qui ont pour cause le préjugé, l’intolérance et la haine

Reconnaissant la responsabilité des Etats participants dans la promotion de la tolérance et de la non‑discrimination,

1.a) Condamne dans les termes les plus vigoureux toute manifestation de nationalisme agressif, de racisme, de chauvinisme, de xénophobie, d’antisémitisme et d’extrémisme violent ainsi que tout discours de haine et phénomène de discrimination fondé sur la religion ou la croyance ;

(…)

2. Décide d’intensifier les efforts visant à maintenir et à renforcer la tolérance et la non‑discrimination, avec l’assistance des institutions de l’OSCE et en coopération avec les organisations internationales pertinentes et la société civile, au moyen notamment d’échanges d’informations et de meilleures pratiques ;

(…)

5. Condamne, en particulier, la discrimination fondée sur des motifs religieux et s’en- gage à prévenir toute attaque dirigée contre des groupes religieux, et à les protéger, qu’il s’agisse de personnes ou de lieux de culte ou d’objets religieux ;

6. Condamne en particulier l’augmentation récente d’incidents antisémites dans la région de l’OSCE, en reconnaissant le rôle qu’à joué l’antisémitisme dans l’histoire en tant que danger majeur pour la liberté ;

7. Condamne également la recrudescence d’actes de discrimination et de violence à l’en- contre des Musulmans dans la région de l’OSCE et rejette fermement l’identification du terrorisme et de l’extrémisme avec une religion ou une culture particulière ;

8. Décide de s’engager publiquement avec fermeté contre le discours de haine et les autres manifestations de nationalisme agressif, de racisme, de chauvinisme, de xéno- phobie, d’antisémitisme et d’extrémisme violent, ainsi que les phénomènes de discrimi- nation fondés sur la religion ou la croyance ;

(…)

Maastricht 2003 (Stratégie de l’OSCE visant à faire face aux menaces pour la sécurité et la stabilité au XXIe siècle) Menaces pour la sécurité et la stabilité au XXIe siècle (…)

12. Les pratiques motivées par la discrimination et l’intolérance menacent la sécurité des personnes et peuvent entraîner des conflits et des violences à plus grande échelle. Ces pratiques peuvent avoir pour origine des tensions ethniques et religieuses, le natio- nalisme agressif, le chauvinisme et la xénophobie, et peuvent également résulter du racisme, de l’antisémitisme et de l’extrémisme violent, ainsi que du manque de respect pour les droits des personnes appartenant aux minorités nationales.

Les engagements de la dimension humaine de l’OSCE 209 Engagements relatifs à l’égalité, la tolérance et la non-discrimination Pa rt i e II

13. La mobilité des populations émigrées et l’émergence de sociétés dans lesquelles un grand nombre de cultures coexistent dans toutes les régions de l’espace de l’OSCE offrent davantage de possibilités mais posent également davantage de problèmes. La non‑intégration dans la société ainsi que l’absence de respect de chacun de ses membres pour les droits de tous peuvent nuire à la stabilité.

(…)

Faire face aux menaces liées à la discrimination et à l’intolérance

36. La discrimination et l’intolérance figurent au nombre des facteurs susceptibles d’en- gendrer des conflits qui compromettent la sécurité et la stabilité. En se fondant sur ses engagements dans la dimension humaine, l’OSCE s’attache à promouvoir dans toute sa région des conditions dans lesquelles tous puissent jouir pleinement des droits de l’homme et des libertés fondamentales sous la protection d’institutions démocratiques efficaces et dans le cadre d’une procédure judiciaire régulière et de la primauté du droit. Ces mesures supposent un environnement sûr et des institutions sûres propices à un débat pacifique et permettant à toutes les personnes et à tous les groupes de la société de défendre leurs intérêts. La société civile a un rôle important à jouer à cet égard et l’OSCE continuera à appuyer les organisations de la société civile et à contribuer à leur renforcement.

(…)

38. Les Etats participants ainsi que les organes et institutions de l’OSCE sont résolus à intensifier leurs efforts pour contrer les menaces liées à la discrimination et à l’in- tolérance. Les relations harmonieuses entre les groupes ethniques, religieux, linguisti- ques et autres ainsi que les droits des personnes appartenant à des minorités nationa- les seront activement encouragé (…). La violence, l’intolérance, l’extrémisme et la discri- mination à l’encontre de ces groupes, notamment les travailleurs migrants, les deman- deurs d’asile et d’autres immigrants, doivent être conjurés et les auteurs de tels actes doivent en être tenus responsables. Dans le même temps, il importe que les personnes appartenant à de tels groupes respectent la primauté du droit, les valeurs démocratiques et les libertés individuelles.

Maastricht 2003 (Décisions : Décision No 4/03 sur la tolérance et la non-discrimina- tion) Le Conseil ministériel,

(…)

Réaffirmant son engagement à promouvoir la tolérance et à lutter contre la discrimina- tion et sa préoccupation face à toute manifestation de nationalisme agressif, de racisme, de chauvinisme, de xénophobie, d’antisémitisme et d’extrémisme violent dans tous les Etats participants, ainsi que face à la discrimination fondée, notamment, sur la race, la couleur, le sexe, la langue, la religion ou la croyance, les opinions politiques ou autres, l’origine nationale ou sociale, la fortune, la naissance ou sur toute autre situation,

210 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Lutte contre les actes qui ont pour cause le préjugé, l’intolérance et la haine

Priant instamment les autorités compétentes de tous les Etats participants de continuer à condamner publiquement, à un niveau approprié et de façon appropriée, les actes vio- lents motivés par la discrimination et l’intolérance,

Affirmant son engagement à redoubler d’efforts pour promouvoir la tolérance et la non‑discrimination dans tous les domaines,

(…)

8. Reconnaît la nécessité de lutter contre les crimes inspirés par la haine qui peuvent être alimentés par la propagande raciste, xénophobe et antisémite sur Internet. (…)

9. Affirme l’importance de la liberté de pensée, de conscience, de religion ou de convic- tion, et condamne toute discrimination et tout acte de violence, notamment à l’encon- tre de tout groupe religieux ou de tout croyant. S’engage à assurer et à favoriser la liberté de chacun de professer et de pratiquer une religion ou une croyance, seul ou en commu- nauté avec d’autres, si nécessaire par des lois, règlements, pratiques et politiques trans- parents et non discriminatoires. Encourage les Etats participants à solliciter l’assistance du BIDDH et de son groupe consultatif d’experts sur la liberté de religion ou de convic- tion. (…)

11. S’engage à lutter contre la discrimination envers les travailleurs migrants. S’engage, en outre, à favoriser l’intégration des travailleurs migrants dans les sociétés où ces tra- vailleurs résident légalement. Prie le BIDDH de renforcer ses activités à cet égard ;

12. S’engage, dans ce contexte, à combattre, sous réserve de la législation nationale et des engagements internationaux, la discrimination, là où elle existe, à l’encontre des deman- deurs d’asile et des réfugiés, et prie le BIDDH de renforcer ses activités à cet égard ;

13. Prend en considération les Principes directeurs des Nations Unies relatifs au dépla- cement de personnes à l’intérieur de leur propre pays comme cadre utile aux travaux de l’OSCE et aux efforts des Etats participants visant à ce que les déplacements internes bénéficient d’une plus grande attention ;

(…)

15. Décide d’intensifier la coopération de l’OSCE avec des organisations internationales compétentes telles que les Nations Unies, le Conseil de l’Europe et l’Union européenne, ainsi qu’avec la société civile et des organisations non gouvernementales compétentes afin de promouvoir la tolérance et la non‑discrimination ;

(…)

Sofia 2004 (Déclaration ministérielle sur le soixantième anniversaire de la fin de la Seconde Guerre mondiale) (…)

L’histoire nous a appris les dangers inhérents à l’intolérance, à la discrimination, à l’ex- trémisme et à la haine fondés sur des motifs ethniques, raciaux et religieux. Nous som-

Les engagements de la dimension humaine de l’OSCE 211 Engagements relatifs à l’égalité, la tolérance et la non-discrimination Pa rt i e II

mes résolus à combattre ces menaces, notamment par le biais de l’OSCE et nous reje- tons toute tentative visant à les justifier.

Nous condamnons avec vigueur tout déni de l’Holocauste. Nous condamnons toutes les formes de nettoyage ethnique. Nous confirmons notre adhésion à la Convention des Nations Unies pour la prévention et la répression du crime de génocide, adoptée le 9 décembre 1948. Nous appelons les Etats participants à prendre toutes les mesures possibles pour veiller à prévenir toute tentative de génocide aujourd’hui et demain. Les auteurs de tels crimes devraient être traduits en justice.

(…)

Sofia 2004 (Décisions : Annexe à la Décision No. 12/04 sur la tolérance et la non-discri- mination ; Décision du Conseil permanent No. 607 : Lutte contre l’antisémitisme) Le Conseil ministériel,

(…)

2. Approuve les décisions du Conseil permanent sur la lutte contre l’antisémitisme (PC. DEC/607), sur la tolérance et la lutte contre le racisme, la xénophobie et la discrimina- tion (PC.DEC/621), ainsi que celle sur la promotion de la tolérance et de la liberté des médias sur Internet (PC.DEC/633), jointes en annexe à la présente décision ;

3. Décide en outre d’intensifier les efforts visant à mettre en œuvre ces trois décisions qui comprennent des engagements dans les domaines, notamment, de l’éducation, des médias, de la législation, de l’application des lois, de la migration et de la liberté de reli- gion ;

(…)

5. Accueille avec satisfaction l’intention du Président en exercice de désigner, conformé- ment à la Décision No 8 du Conseil ministériel de Porto, trois représentants personnels dans le cadre de la lutte globale de l’OSCE contre la discrimination et pour la promo- tion de la tolérance. (…)

Sofia 2004 (Décisions : Annexe à la Décision No. 12/04 sur la tolérance et la non-discri- mination ; Décision du Conseil permanent No. 607 : Lutte contre l’antisémitisme) Le Conseil permanent,

(…)

Soucieux de renforcer nos efforts communs visant à lutter contre l’antisémitisme dans toute la région de l’OSCE,

Décide ce qui suit :

1. Les Etats participants s’engagent à :

212 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Lutte contre les actes qui ont pour cause le préjugé, l’intolérance et la haine

• Œuvrer pour que leurs systèmes juridiques favorisent un environnement sûr dans lequel le harcèlement, la violence ou la discrimination antisémite n’existent dans aucun domaine ;

(…)

• Combattre les crimes inspirés par la haine pouvant être suscités par la propagande raciste, xénophobe et antisémite dans les médias et sur Internet ;

• Encourager et appuyer les efforts déployés par les organisations internationales et les ONG dans ces domaines ;

(…)

• Coopérer avec l’Assemblée parlementaire de l’OSCE pour déterminer les moyens appropriés permettant d’examiner périodiquement le problème de l’antisémitisme ;

• Encourager le développement d’échanges informels entre experts dans le cadre d’ins- tances appropriées sur les meilleures pratiques et les expériences dans les domaines de l’application des lois et de l’éducation ;

(…)

Sofia 2004 (Décisions : Annexe à la Décision No 12/04 sur la tolérance et la non-discri- mination ; Décision du Conseil permanent No 621 : Tolérance et lutte contre le racisme, la xénophobie et la discrimination) Le Conseil permanent,

(…)

Soucieux de renforcer nos efforts communs visant à lutter contre les manifestations d’intolérance dans la région de l’OSCE,

Décide ce qui suit :

1. Les Etats participants s’engagent à :

(…)

• Prendre des mesures visant à combattre les actes de discrimination et de violence envers les musulmans dans l’espace de l’OSCE ;

• Prendre des mesures, conformément à leur droit interne et aux obligations interna- tionales, de lutte contre la discrimination, l’intolérance et la xénophobie envers les migrants et les travailleurs migrants ;

• Envisager d’entreprendre des activités de sensibilisation de l’opinion publique à la contribution enrichissante des migrants et des travailleurs migrants à la société ;

Les engagements de la dimension humaine de l’OSCE 213 Engagements relatifs à l’égalité, la tolérance et la non-discrimination Pa rt i e II

• Combattre les crimes inspirés par la haine pouvant être suscités par la propagande raciste, xénophobe et antisémite dans les médias et sur Internet et dénoncer publique- ment de manière appropriée de tels crimes lorsqu’ils sont commis ;

(…)

• Encourager et appuyer les efforts des organisations internationales et des ONG dans ces domaines ;

(…)

• Examiner la possibilité d’établir dans les pays des organes appropriés pour promou- voir la tolérance et combattre le racisme, la xénophobie, la discrimination ou l’intolé- rance qui y est associée, notamment envers les musulmans, et l’antisémitisme ;

(…)

• Coopérer avec l’Assemblée parlementaire de l’OSCE pour déterminer les moyens appropriés permettant d’examiner périodiquement les problèmes du racisme, de la xénophobie et de la discrimination ;

• Encourager le développement d’échanges informels entre experts dans le cadre d’ins- tances appropriées sur les meilleurs pratiques et les expériences dans les domaines de l’application des lois et de l’éducation ;

(…)

5.3.2 International Instruments Copenhague 1990 (40.6) — [Les Etats participants] envisageront d’adhérer, s’ils ne l’ont pas encore fait, aux instruments internationaux relatifs au problème de la discrimination, et ils garantiront qu’ils se conformeront pleinement aux obligations contenues dans ces instruments, y compris à celles prévoyant la présentation de rapports périodiques ;

(40.7) — [Les Etats participants] examineront également la possibilité d’adopter les mécanismes internationaux qui permettent aux Etats et aux particuliers de soumet- tre à des organismes internationaux des communications concernant des actes de dis- crimination.

Helsinki 1992 (Décisions : VI. La dimension humaine) [Les Etats participants]

(32) Envisageront d’adhérer à la Convention internationale sur l’élimination de toutes les formes de discrimination raciale, s’ils ne sont pas encore parties à cet instrument ;

214 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Lutte contre les actes qui ont pour cause le préjugé, l’intolérance et la haine

Sofia 2004 (Déclaration ministérielle sur le soixantième anniversaire de la fin de la Seconde Guerre mondiale) (…) Nous confirmons notre adhésion à la Convention des Nations Unies pour la préven- tion et la répression du crime de génocide, adoptée le 9 décembre 1948. (…)

5.3.3 Législation, application de la loi et politiques Copenhague 1990 (40.1) — [Les Etats participants] prendront des mesures efficaces, y compris l’adoption, conformément à leur système constitutionnel et à leurs obligations internationales, de lois nécessaires à assurer une protection contre tout acte constituant une incitation à la violence contre des personnes ou groupes de personnes fondée sur la discrimination nationale, raciale, ethnique ou religieuse, à l’hostilité ou à la haine, y compris l’antisé- mitisme ;

(…)

(40.5) — [Les Etats participants] reconnaîtront le droit qu’a toute personne de disposer effectivement d’un recours, et ils s’efforceront de reconnaître, conformément à la légis- lation nationale, le droit qu’ont les personnes et groupes de personnes concernées de déposer des plaintes contre les actes de discrimination, y compris les actes racistes et xénophobes, et de soutenir de telles plaintes ;

Helsinki 1992 (Décisions : VI. La dimension humaine) [Les Etats participants]

(33) Envisageront de prendre des mesures appropriées dans le cadre de leur système constitutionnel et conformément à leurs obligations internationales pour assurer la protection de toute personne se trouvant sur leur territoire contre toute discrimination fondée sur la race, l’appartenance ethnique et la religion, ainsi que pour protéger tous les individus, y compris les étrangers, contre les actes de violence, y compris ceux fon- dés sur l’un quelconque de ces motifs. De plus, ils tireront pleinement parti de leur sys- tème juridique, notamment par l’application des lois en vigueur en la matière ;

Budapest 1994 (Décisions : VIII. La dimension humaine) 25. Les Etats participants condamnent les manifestations d’intolérance, en particulier de nationalisme agressif, de racisme, de chauvinisme, de xénophobie et d’antisémitisme, et ils continueront à promouvoir les mesures efficaces en vue d’éradiquer ces fléaux de la société. (…) Ils chercheront à renforcer ou à adopter une législation appropriée et à prendre les mesures nécessaires pour veiller à ce que la législation en vigueur soit effectivement appliquée pour décourager de tels actes. Ils soulignent également qu’une action contre ces phénomènes doit être considérée comme une composante de la politi- que d’intégration et de l’éducation. (…)

Les engagements de la dimension humaine de l’OSCE 215 Engagements relatifs à des menaces précises pesant sur la sécurité des personnes Pa rt i e II

Porto 2002 (V. Décisions : Décision No. 6 sur la tolérance et la non-discrimination) Le Conseil ministériel,

(…)

9. Prie les autorités compétentes des Etats participants de mener une enquête prompte et impartiale sur les actes de violence, notamment lorsqu’il existe des motifs raisonna- bles de croire qu’ils ont été fondés sur des nationalisme agressif, racisme, chauvinisme, xénophobie, antisémitisme et extrémisme violent, ainsi que sur les attaques fondées sur la haine contre une religion ou une croyance particulière, et d’en punir leurs auteurs conformément au droit interne et en accord avec les normes internationales pertinentes en matière de droits de l’homme ;

(…)

Maastricht 2003 (Décisions : Annexe à la Décision No. 3/03 : Plan d’action visant à amé- liorer la situation des Roms et des Sintis dans l’espace de l’OSCE) III. Lutte contre le racisme et la discrimination Afin de combattre les préjugés (…) et d’élaborer et d’appliquer valablement des politi- ques de lutte contre la discrimination et la violence raciales, les mesures suivantes sont recommandées :

Législation et mesures visant à en assurer le respect Mesures recommandées aux Etats participants : 7. Envisager de ratifier dès que possible, s’ils ne l’ont pas déjà fait, les traités internatio- naux appropriés, notamment la Convention internationale sur l’élimination de toutes les formes de discrimination raciale.

8. Adopter et appliquer une législation efficace pour lutter contre la discrimination raciale et ethnique dans tous les domaines, y compris, notamment, l’accès au logement, à la citoyenneté et à un domicile, à l’éducation, à l’emploi et aux services médicaux et sociaux. Associer les représentants des Roms et des Sintis à la conception, à la mise en œuvre et à l’évaluation de cette législation.

9. La législation en matière de lutte contre la discrimination devrait :

• Interdire la discrimination raciale tant directe qu’indirecte ;

• Imposer des sanctions efficaces, proportionnées et dissuasives pour les actes ou les pratiques discriminatoires ;

• Imposer des peines plus lourdes pour les crimes à motivation raciale commis tant par des personnes privées que par des agents publics ;

• Garantir l’égalité d’accès à des recours efficaces (juridiques, administratifs, procédu- res de conciliation ou de médiation).

216 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Lutte contre les actes qui ont pour cause le préjugé, l’intolérance et la haine

10. Il conviendrait de faire en sorte que la législation nationale interdise les actes dis- criminatoires quels qu’ils soient et que tous les cas suspectés de discrimination fassent l’objet d’une enquête approfondie et objective.

11. Créer, selon qu’il conviendra, des institutions spécialisées pour assurer la mise en œuvre d’une telle législation, ainsi que des mécanismes internes pour suivre les pro- grès accomplis à cet égard et en rendre compte régulièrement et de manière transpa- rente. (…)

Maastricht 2003 (Décisions : Décision No 4/03 sur la tolérance et la non-discrimina- tion) Le Conseil ministériel,

(…)

6. (…) Reconnaissant l’importance de la législation visant à lutter contre les crimes ins- pirés par la haine, les Etats participants informeront le BIDDH de la législation existante sur les crimes découlant de l’intolérance et de la discrimination et, le cas échéant, solli- citeront l’assistance du BIDDH pour la rédaction et la révision d’une telle législation ;

(…)

Sofia 2004 (Décisions : Annexe à la Décision No 12/04 sur la tolérance et la non-discri- mination ; Décision du Conseil permanent No 621 : Tolérance et lutte contre le racisme, la xénophobie et la discrimination) Le Conseil permanent,

(…)

Soucieux de renforcer nos efforts communs visant à lutter contre les manifestations d’intolérance dans la région de l’OSCE,

Décide ce qui suit :

1. Les Etats participants s’engagent à :

• Envisager de promulguer ou de renforcer, le cas échéant, une législation interdisant la discrimination ou toute incitation à des crimes inspirés par la haine pouvant être motivés par la race, la couleur, le sexe, la langue, la religion, l’opinion politique ou toute autre opinion, l’origine nationale ou sociale, la fortune, la naissance ou toute autre situation ;

(…)

• Envisager d’établir des programmes de formation destinés aux responsables de la police et de la justice sur la législation et l’application de la législation relative aux cri- mes inspirés par la haine ;

Les engagements de la dimension humaine de l’OSCE 217 Engagements relatifs à l’égalité, la tolérance et la non-discrimination Pa rt i e II

Sofia 2004 (Décisions : Annexe à la Décision No. 12/04 sur la tolérance et la non-discri- mination ; Décision du Conseil permanent No. 633 : Promotion de la tolérance et de la liberté des médias sur l’internet) Le Conseil permanent,

(…)

Décide ce qui suit :

(…)

2. Les Etats participants devraient enquêter sur la violence et les menaces criminelles de violence inspirées par des préjugés racistes, xénophobes, antisémites ou autres sur l’In- ternet et, s’il y a lieu, en poursuivre pleinement les auteurs ;

3. Les Etats participants devraient former les agents de la force publique et les procu- reurs aux moyens de traiter les crimes motivés par des préjugés racistes, xénophobes, antisémites ou autres sur l’Internet et diffuser des informations sur les programmes de formation fructueux dans le cadre de l’échange des meilleures pratiques ;

5.3.4 Collecte et suivi des données Genève 1991 (VI) En outre, pour que l’opinion publique prenne mieux conscience des préjugés et de la haine, que les lois contre les crimes liés à la haine soient mieux appliquées et que, d’une façon générale, les efforts visant à combattre la haine et les préjugés dans la société soient poursuivis, [les Etats participants] s’efforceront de recueillir, de publier régulière- ment et de mettre à la disposition du public des données sur les crimes commis sur leur territoire, inspirés par des préjugés fondés sur la race, l’identité ethnique ou la religion, y compris les directives suivies pour la collecte de ces données. Ces données ne devraient pas contenir d’informations ayant un caractère personnel.

Maastricht 2003 (Stratégie de l’OSCE visant à faire face aux menaces pour la sécurité et la stabilité au XXIe siècle) 41. Il sera pleinement tiré parti des capacités d’observation du BIDDH, et la coopéra- tion opérationnelle avec d’autres organismes de surveillance notamment en matière de collecte de données, d’échange d’informations et d’analyse commune sera encouragée pour que l’OSCE puisse se faire l’idée la plus précise possible des événements, ce qui lui permettra d’axer de manière efficace ses activités sur les domaines prioritaires.

Maastricht 2003 (Décisions : Décision No 4/03 sur la tolérance et la non-discrimina- tion) Le Conseil ministériel,

(…)

218 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Lutte contre les actes qui ont pour cause le préjugé, l’intolérance et la haine

6. Encourage tous les Etats participants à recueillir et à conserver des informations et des statistiques fiables sur les crimes inspirés par la haine, notamment sur les mani- festations violentes de racisme, de xénophobie, de discrimination et d’antisémitisme, comme évoqué et recommandé lors des conférences susmentionnées. (…)

Sofia 2004 (Décisions : Annexe à la Décision No. 12/04 sur la tolérance et la non-discri- mination ; Décision du Conseil permanent No. 607 : Lutte contre l’antisémitisme) Le Conseil permanent,

(…)

Soucieux de renforcer nos efforts communs visant à lutter contre l’antisémitisme dans toute la région de l’OSCE,

Décide ce qui suit :

1. Les Etats participants s’engagent à :

(…)

• Recueillir et gérer des informations et des statistiques fiables sur les crimes antisémi- tes ainsi que sur d’autres crimes inspirés par la haine, commis sur leurs territoires, communiquer périodiquement ces informations au Bureau des institutions démocra- tiques et des droits de l’homme (BIDDH), et mettre ces informations à la disposition du public ;

(…)

Sofia 2004 (Décisions : Annexe à la Décision No. 12/04 sur la tolérance et la non-discri- mination ; Décision du Conseil permanent No. 621: Tolérance et lutte contre le racisme, la xénophobie et la discrimination) Le Conseil permanent,

(…)

Soucieux de renforcer nos efforts communs visant à lutter contre les manifestations d’intolérance dans la région de l’OSCE,

Décide ce qui suit :

1. Les Etats participants s’engagent à :

(…)

• Recueillir et gérer des informations et des statistiques fiables sur les crimes de haine motivés par le racisme, la xénophobie et la discrimination et l’intolérance qui y sont associées, commis sur leurs territoires, communiquer périodiquement ces informa-

Les engagements de la dimension humaine de l’OSCE 219 Engagements relatifs à l’égalité, la tolérance et la non-discrimination Pa rt i e II

tions au Bureau des institutions démocratiques et des droits de l’homme de l’OSCE (BIDDH) et mettre ces informations à la disposition du public ;

5.3.5 Promouvoir la tolérance, la compréhension, le respect (y compris la mémoire) Helsinki 1975 (Questions relatives à la sécurité en Europe : 1. (b) Questions concernant la mise en pratique de certains des principes énoncés ci-dessus) (i) Les Etats participants,

(…)

Déclarent qu’ils sont résolus à respecter et à mettre en œuvre, dans leurs relations mutuel- les, entre autres, les dispositions suivantes qui sont conformes à la Déclaration sur les principes régissant les relations mutuelles des Etats partici­pants :

(…)

• Promouvoir, par tous les moyens que chacun d’entre eux estime appropriés, un climat de confiance et de respect entre les peuples en harmonie avec leur devoir de s’abste- nir de la propagande en faveur de guerres d’agression ou de toute menace ou de tout emploi de la force incompatible avec les buts des Nations Unies et la Déclaration sur les principes régissant les relations mutuelles des Etats participants, contre un autre Etat participant.

Vienne 1989 (Questions relatives à la sécurité en Europe : Principes) (16) Afin d’assurer la liberté de tout un chacun de professer et pratiquer une religion ou une con­viction, les Etats participants, entre autres,

(…)

(16.2) — favoriseront un climat de tolérance et de respect mutuels entre les croyants de communautés différentes, ainsi qu’entre croyants et non‑croyants ;

Vienne 1989 (Coopération dans les domaines humanitaires et autres ; Coopération et échanges dans le domaine de la culture) (61) En tenant dûment compte de l’originalité et de la diversité de leurs cultures respec- tives, ils encourageront les efforts visant à déterminer les caractéristiques communes de leur patrimoine culturel et à faire mieux connaître celui‑ci. Aussi encourageront‑ils les initiatives susceptibles de contribuer à une meilleure connaissance du patrimoine cultu- rel des autres Etats participants sous tous ses aspects, y compris régionaux et folklori- ques.

Copenhague 1990 (36) (…) Chaque Etat participant favorisera l’instauration d’un climat propice à la compréhension et au respect mutuel, à la coopération et à la solidarité entre tous les citoyens résidant sur son territoire, sans distinction d’origine ethnique ou nationale ou

220 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Lutte contre les actes qui ont pour cause le préjugé, l’intolérance et la haine

de croyance religieuse, et il encouragera la recherche de solutions aux problèmes par un dialogue fondé sur les principes de l’Etat de droit.

(…)

(40.3) — [Les Etats participants] prendront des mesures efficaces, conformément à leurs systèmes constitutionnels, aux niveaux national, régional et local pour favoriser la com- préhension et la tolérance, particulièrement dans les domaines de l’enseignement, de la culture et de l’information ;

(40.4) — [Les Etats participants] s’efforceront de garantir que l’enseignement dans ses buts mette l’accent sur le problème de la haine et des préjugés raciaux et sur le respect des différentes civilisations et cultures ;

Paris 1990 (Une nouvelle ère de démocratie, de paix et d’unité) Nous reconnaissons que notre culture commune européenne et nos valeurs partagées ont contribué de manière essentielle à surmonter la division du continent. Par conséquent, nous soulignons notre attachement à la liberté créatrice, ainsi qu’à la protection et la pro- motion de notre patrimoine culturel et spirituel, dans toute sa richesse et sa diversité.

Cracovie 1991 (Préambule) Les Etats participants expriment leur profonde conviction qu’ils partagent des valeurs communes forgées par l’histoire et fondées, entre autres, sur le respect de la personne, la liberté de conscience, de religion ou de conviction, la liberté d’expression, la reconnais- sance de l’importance des valeurs spirituelles et culturelles, l’attachement au règne du droit, à la tolérance et à l’ouverture au dialogue avec les autres cultures.

(…)

Les Etats participants respectent l’irremplaçable singularité de chacune de leurs cultu- res et veilleront à promouvoir un dialogue culturel continu entre eux et avec le reste du monde. Ils se déclarent à nouveau convaincus que le respect de la diversité culturelle favorise la compréhension et la tolérance entre individus et entre groupes.

Ils estiment que les aspects régionaux de la culture devraient constituer en soi un fac- teur d’entente entre les peuples.

La diversité culturelle régionale est un reflet de la richesse de l’identité culturelle com- mune des Etats participants. Sa préservation et sa protection contribuent à édifier une Europe démocratique, pacifique et unie.

(…)

II. Culture et patrimoine

(…)

Les engagements de la dimension humaine de l’OSCE 221 Engagements relatifs à l’égalité, la tolérance et la non-discrimination Pa rt i e II

18. Aux échelons local, régional et national, les associations entre divers groupes venant des secteurs public et privé sont d’une grande utilité pour assurer une préservation effi- cace et représentative du patrimoine culturel. La préservation et l’explication des valeurs et du patrimoine culturel de divers groupes seront facilitées par la participation de ces groupes, ce qui donnera un résultat d’une importance primordiale, la tolérance et le res- pect envers les différentes cultures.

(…)

III. Principaux domaines de preservation et de coopération

27. Ayant présent à l’esprit le rôle important que jouent les éléments régionaux de la culture pour relier des populations par-delà les frontières nationales, les Etats partici- pants encourageront la coopération régionale au niveau tant des autorités locales et natio- nales que des organisations non gouvernementales afin de favoriser des relations de bon voisinage.

(…)

31. Les Etats participants s’efforceront de préserver et de protéger les monuments et les sites du souvenir, tout particulièrement les camps d’extermination, et leurs archives, qui portent par eux-mêmes témoignage des événements tragiques de leur passé commun. De telles mesures doivent être prises afin que ces événements ne tombent pas dans l’oubli ; elles pourront contribuer à enseigner aux générations actuelles et futures ce que fut ce passé afin qu’il ne puisse jamais se répéter.

32. L’explication de ce que sont ces lieux chargés de souvenirs douloureux peut constituer un moyen précieux de promouvoir la tolérance et la compréhension, compte tenu de la diversité sociale et culturelle.

Genève 1991 (VI) [Les Etats participants] prendront des mesures efficaces pour promouvoir sur leur ter- ritoire la tolérance, la compréhension, l’égalité des chances et les bonnes relations entre personnes d’origines différentes.

Moscou 1991 (38.1) (…) Ils prendront, conformément à leur législation nationale et à leurs obligations internationales, des mesures efficaces pour promouvoir la tolérance, la compréhension, l’égalité des chances et le respect des droits de l’homme fondamentaux des travailleurs migrants (…)

Helsinki 1992 (Déclaration du sommet) 12. (…) La récession économique, les tensions sociales, le nationalisme agressif, l’intolé- rance, la xénophobie et les conflits ethniques menacent la stabilité dans la région de la CSCE. (…)

222 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Lutte contre les actes qui ont pour cause le préjugé, l’intolérance et la haine

Il reste beaucoup à faire pour édifier des sociétés démocratiques et pluralistes telles que la diversité y soit protégée et respectée pleinement dans la pratique. En conséquence, nous rejetons toute forme de discrimination raciale, ethnique et religieuse. La liberté et la tolérance doivent être enseignées et mises en pratique.

Helsinki 1992 (Décisions : VI. La dimension humaine) Tolérance et non-discrimination

Les Etats participants

(30) Expriment leur préoccupation devant les récentes manifestations éhontées d’into- lérance, de discrimination, de nationalisme agressif, de xénophobie, d’antisémitisme et de racisme, et soulignent le rôle capital que jouent la tolérance, la compréhension et la coopération dans l’instauration et le maintien de sociétés démocratiques stables ;

(…)

(34) Envisageront de mettre au point des programmes qui viseront à créer les condi- tions propices à la promotion de la non-discrimination et à la compréhension intercul- turelle et qui se concentreront sur l’éducation dans le domaine des droits de l’homme, l’action à la base, la formation interculturelle et la recherche ;

Rome 1993 (Décisions : IV. La dimension humaine) 1. (…) Préoccupés par les raisons profondes de la tension découlant de préjugés histori- ques, les ministres ont demandé que des efforts soient entrepris au moyen, entre autres, de l’éducation, pour promouvoir la tolérance et la conscience d’appartenir à un sys- tème de valeurs communes. Les ministres ont souligné que la mise en œuvre des enga- gements concernant la dimension humaine doit occuper une place centrale dans les efforts de la CSCE pour la prévention des conflits.

Istanbul 1999 (Charte de sécurité européenne : III. Notre réponse commune) 19. (…) Nous condamnons la violence contre une minorité quelle qu’elle soit. Nous nous engageons à prendre des mesures pour promouvoir la tolérance et à édifier des socié- tés pluralistes dans lesquelles toutes les personnes, quelle que soit leur origine ethnique, jouissent de l’égalité des chances. (…)

Bucarest 2001 (Annexe à la Décision 1 sur la lutte contre le terrorisme ; Plan d’action de Bucarest pour lutter contre le terrorisme) 11. Promotion des droits de l’homme, de la tolérance et du multiculturalisme : Etats participants/Conseil permanent/BIDDH/Haut Commissaire pour les minorités natio- nales (HCMN)/Représentant de l’OSCE pour la liberté des médias : Ils favoriseront et renforceront la tolérance, la coexistence et les relations harmonieuses entre les groupes ethniques, religieux, linguistiques et autres, de même qu’une coopération constructive à cet égard entre Etats participants. (…)

Les engagements de la dimension humaine de l’OSCE 223 Engagements relatifs à l’égalité, la tolérance et la non-discrimination Pa rt i e II

Bucarest 2001 (Décisions : Décision No. 5) Le Conseil ministériel,

(…)

Invite les Etats participants à promouvoir la tolérance et la non-discrimination (…) par des campagnes de sensibilisation et par l’éducation ; (…)

Porto 2002 (Chartre de l’OSCE sur la prévention et la lutte contre le terrorisme) 21. Prennent note du rôle positif que peuvent jouer les médias dans la promotion de la tolérance et de la compréhension entre religions, croyances, cultures et peuples (…).

Porto 2002 (Décisions : Décision No.6 sur la tolérance et la non-discrimination) Le Conseil ministériel,

(…)

Réaffirmant que la démocratie et la protection des droits de l’homme et des libertés fondamentales sont les garants essentiels de la tolérance et de la non‑discrimination et qu’ils constituent des facteurs importants de stabilité, de sécurité, de coopération et de développement pacifique dans toute la région de l’OSCE, et que réciproquement, la tolérance et la non‑discrimination sont des éléments importants pour la promotion des droits de l’homme,

Réaffirmant l’interdiction, reconnue sur le plan international, de la discrimination, sans exception aucune, fondée sur la race, la couleur, le sexe, la langue, la religion et la croyance, les opinions politiques ou autres, l’origine nationale ou sociale, l’état de for- tune, la naissance ou sur toute autre situation,

Rappelant l’action ininterrompue des structures et des institutions de l’OSCE dans le domaine de la promotion des droits de l’homme, de la tolérance, de la non‑discrimina- tion et du multiculturalisme, en particulier par les réunions, activités, projets et pro- grammes sur la dimension humaine, notamment ceux des Etats participants,

Soulignant le rôle positif du dialogue multiculturel et interreligieux pour une meilleure compréhension entre les nations et les peuples,

Notant que la promotion de la tolérance et de la non‑discrimination peut également contribuer à éliminer le fondement des discours de haine, nationalisme agressif, racisme, chauvinisme, xénophobie, antisémitisme et extrémisme violent,

Reconnaissant la responsabilité des Etats participants dans la promotion de la tolérance et de la non‑discrimination,

224 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Lutte contre les actes qui ont pour cause le préjugé, l’intolérance et la haine

1. (…)

(b) S’engage à promouvoir plus avant un dialogue multiculturel, interethnique et inter- religieux auquel les gouvernements et la société civile seront encouragés à participer activement ;

(…)

2. Décide d’intensifier les efforts visant à maintenir et à renforcer la tolérance et la non‑discrimination, avec l’assistance des institutions de l’OSCE et en coopération avec les organisations internationales pertinentes et la société civile, au moyen notamment d’échanges d’informations et de meilleures pratiques ;

(…)

4. S’engage à prendre des mesures appropriées, conformément aux systèmes constitu- tionnel respectifs, au niveau national, régional et local afin de promouvoir la tolérance et la non‑discrimination ainsi qu’à lutter contre les préjugés et affirmations mensongè- res, en particulier dans le domaine de l’éducation, de la culture et de l’information ;

Maastricht 2003 (Stratégie de l’OSCE visant à faire face aux menaces pour la sécurité et la stabilité au XXIe siècle) 40. Les efforts de l’OSCE seront axés tout particulièrement sur les jeunes générations pour leur faire comprendre la nécessité de la tolérance et l’importance de la réconcilia- tion et de la coexistence pacifique. Leurs perspectives d’avenir sont un facteur essentiel. Le cas échéant, l’OSCE assumera donc un rôle plus important dans le domaine de l’édu- cation. Un domaine tel que l’éducation aux droits de l’homme mériterait une attention particulière.

Sofia 2004 (Décisions : Annexe à la Décision No. 12/04 sur la tolérance et la non-discri- mination ; Décision du Conseil permanent No. 607 : Lutte contre l’antisémitisme) Le Conseil permanent,

(…)

Soucieux de renforcer nos efforts communs visant à lutter contre l’antisémitisme dans toute la région de l’OSCE,

Décide ce qui suit :

1. Les Etats participants s’engagent à :

(…)

• Promouvoir, le cas échéant, des programmes pédagogiques visant à combattre l’anti- sémitisme ;

Les engagements de la dimension humaine de l’OSCE 225 Engagements relatifs à l’égalité, la tolérance et la non-discrimination Pa rt i e II

• Promouvoir la mémoire de l’Holocauste et, le cas échéant, faire connaître cette tragé- die ainsi que l’importance du respect de tous les groupes ethniques et religieux ;

(…)

Sofia 2004 (Décisions : Annexe à la Décision No. 12/04 sur la tolérance et la non-discri- mination ; Décision du Conseil permanent No. 607 : Lutte contre l’antisémitisme) 1. Les Etats participants s’engagent à :

(…)

• Promouvoir et renforcer, le cas échéant, des programmes pédagogiques visant à favo- riser la tolérance et à lutter contre le racisme, la xénophobie et la discrimination ;

• Encourager et faciliter un dialogue interconfessionnel et interculturel ouvert et trans- parent ainsi que des partenariats en faveur de la tolérance, du respect et de la compré- hension mutuelle (…) ;

(…)

• Encourager la promotion de la tolérance, du dialogue, du respect et de la compréhen- sion mutuelle par les médias, y compris Internet ;

(…)

5.3.6 Rôles des médias Istanbul 1999 (Déclaration du sommet) 27. Nous nous engageons à garantir la liberté des médias qui est une condition de base pour toute société pluraliste et démocratique. Nous sommes profondément préoccu- pés par la manière dont les médias sont exploités dans les zones de conflit pour attiser la haine et la tension ethnique, et par le recours à des restrictions et tracasseries juridiques pour priver les citoyens de médias libres. (…)

Porto 2002 (Chartre de l’OSCE sur la prévention et la lutte contre le terrorisme) 22. [Les Etats participants s’]engagent à combattre le discours de haine et à prendre les mesures nécessaires pour prévenir l’utilisation des médias et des technologies de l’in- formation à des fins terroristes, en veillant à ce que ces mesures soient conformes à la législation nationale, au droit international et aux engagements de l’OSCE ;

Maastricht 2003 (Stratégie de l’OSCE visant à faire face aux menaces pour la sécurité et la stabilité au XXIe siècle) 37. (…) Tout en respectant pleinement la liberté d’expression, l’OSCE s’attachera à lut- ter contre les crimes inspirés par la haine qui peuvent être alimentés par la propagande raciste, xénophobe et antisémite sur Internet.

226 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Lutte contre les actes qui ont pour cause le préjugé, l’intolérance et la haine

Sofia 2004 (Décisions : Annexe à la Décision No. 12/04 sur la tolérance et la non-discri- mination ; Décision du Conseil permanent No. 607 : Lutte contre l’antisémitisme) Le Conseil permanent,

(…)

Soucieux de renforcer nos efforts communs visant à lutter contre les manifestations d’intolérance dans la région de l’OSCE,

Décide ce qui suit :

1. Les Etats participants s’engagent à :

(…)

• Encourager la promotion de la tolérance, du dialogue, du respect et de la compréhen- sion mutuelle par les médias, y compris Internet ;

(…)

Sofia 2004 (Décisions : Annexe à la Décision No. 12/04 sur la tolérance et la non-discri- mination ; Décision du Conseil permanent No. 607 : Promotion de la tolérance et de la liberté des médias sur l’Internet) Le Conseil permanent,

(…)

Décide ce qui suit :

1. Les Etats participants devraient prendre des mesures pour veiller à ce que l’Internet demeure un forum ouvert et public pour la liberté d’opinion et d’expression, telle qu’elle est consacrée dans la Déclaration universelle des droits de l’homme, et pour favoriser l’accès à l’Internet tant dans les foyers que dans les écoles ;

2. Les Etats participants devraient enquêter sur la violence et les menaces criminelles de violence inspirées par des préjugés racistes, xénophobes, antisémites ou autres sur l’In- ternet et, s’il y a lieu, en poursuivre pleinement les auteurs ;

3. Les Etats participants devraient former les agents de la force publique et les procu- reurs aux moyens de traiter les crimes motivés par des préjugés racistes, xénophobes, antisémites ou autres sur l’Internet et diffuser des informations sur les programmes de formation fructueux dans le cadre de l’échange des meilleures pratiques ;

(…)

5. Les Etats participants devraient étudier l’efficacité des lois et d’autres mesures régle- mentant le contenu de l’Internet, notamment en ce qui concerne leur effet sur le taux de crimes racistes, xénophobes et antisémites ;

Les engagements de la dimension humaine de l’OSCE 227 Engagements relatifs à l’égalité, la tolérance et la non-discrimination Pa rt i e II

6. Les Etats participants devraient encourager et appuyer des études qui analysent rigoureusement les liens éventuels entre le discours raciste, xénophobe et antisémite sur l’Internet et la perpétration de crimes motivés par des préjugés racistes, xénopho- bes, antisémites ou autres ;

7. L’OSCE favorisera les échanges visant à déterminer les approches efficaces pour s’at- taquer au problème de la propagande raciste, xénophobe et antisémite sur l’Internet qui ne portent pas atteinte à la liberté d’information et d’expression. Elle offrira des possi- bilités, notamment pendant la réunion annuelle sur la mise en œuvre de la dimension humaine, de favoriser la mise en commun des meilleures pratiques ;

8. Les Etats participants devraient encourager l’établissement de programmes d’éduca- tion des enfants et des jeunes au discours motivé par des préjugés racistes, xénophobes, antisémites ou autres auquel ils peuvent être confrontés sur l’Internet. En outre, s’il y a lieu, les Etats participants et les fournisseurs de services Internet devraient prendre des mesures pour faire mieux connaître aux parents les logiciels de filtrage courants qui leur permettent d’exercer une supervision et un contrôle accrus sur l’utilisation de l’Internet par leurs enfants. Il conviendrait de diffuser largement de la documentation sur les pro- grammes d’éducation et les logiciels de filtrage efficaces dans le cadre de l’échange des meilleures pratiques ;

9. Les Etats participants devraient accueillir favorablement les efforts continus et accrus que déploient des ONG pour surveiller les contenus racistes, xénophobes et antisémi- tes sur l’Internet ainsi que les efforts qu’elles font pour diffuser et faire connaître leurs conclusions.

228 Les engagements de la dimension humaine de l’OSCE 6. Engagements relatifs à des menaces précises pesant sur la sécurité des personnes

6.1 Prévention de la persécution, la violence et l’exploitation basées sur le sexe d’une personne

Voir aussi : á II. 4.4 : Réfugiés, personnes déplacées, retour des migrants et apatrides á II. 5.2 : Égalité des droits entre les hommes et les femmes á II. 6.2 : Prévention de la traite des êtres humains á II. 7 : Engagements relatifs au droit humanitaire international

Moscou 1991 [Les Etats participants]

(40.7) — s’efforceront d’éliminer toutes les formes de violence contre les femmes et toutes les formes de traite des femmes et d’exploitation de la prostitution, notamment en assu- rant l’interdiction légale de tels actes et en prenant toutes autres mesures appropriées ; Istanbul 1999 (Charte de sécurité européenne : III. Notre réponse commune) 24. Nous prendrons des mesures visant à (…) mettre fin à la violence exercée contre les femmes (…) de même qu’à l’exploitation sexuelle (…). Afin de prévenir ces crimes, nous encouragerons, entre autres, l’adoption de nouvelles lois ou le renforcement de lois exis- tantes pour traduire en justice les auteurs de tels actes et améliorer la protection des victimes. (…)

Bucarest 2001 (Décisions : Décision No. 8) Le Conseil ministériel,

(…)

Convaincu que les femmes ont la possibilité de contribuer aux processus de prévention des conflits, de réconciliation et de consolidation de la paix,

Les engagements de la dimension humaine de l’OSCE 229 Engagements relatifs à des menaces précises pesant sur la sécurité des personnes Pa rt i e II

Confirmant l’engagement de protéger et de promouvoir les droits des femmes et conscient de la vulnérabilité des femmes, en particulier pendant ou après un conflit,

Résolu à combattre toutes les formes de violence contre les femmes, notamment au sein de la famille,

Conscient de la nécessité d’établir des centres de réadaptation pour les femmes victi- mes de la violence,

(…)

Appelle à la mise en œuvre du plan d’action sur l’égalité entre les sexes ;

Sofia 2004 (Décisions : Annexe à la Décision No. 14/04 ; Plan d’action de l’OSCE 2004 pour la promotion de l’égalité entre les sexes) 42. Il est donc recommandé aux Etats participants : (...) • De prendre d’autres mesures, si nécessaire, afin de garantir un environnement sûr à leurs citoyens et le droit à une protection égale par la loi, en renforçant en particulier les activités visant à éliminer toutes les formes de violence à l’encontre des femmes (…) • D’appuyer les efforts nationaux et internationaux visant à traduire en justice les auteurs de crimes à l’encontre de femmes qui sont reconnus en vertu des règles du droit inter- national comme crimes de guerre ou crimes contre l’humanité et de veiller à ce que la législation nationale existante sur la violence à l’encontre des femmes soit appliquée et qu’une nouvelle législation soit élaborée, si nécessaire ; • Comme le recommandent les Principes directeurs relatifs à la protection internatio- nale sur la persécution sexiste au sens de l’article 1A 2) de la Convention de 1951 et du Protocole de 1967 relatif au statut des réfugiés qui s’y rapporte, d’introduire des pro- cédures, si les Etats ne l’ont pas encore fait, afin de veiller à ce qu’il soit dûment tenu compte des demandes présentées par les femmes dans les procédures de détermina- tion du statut de réfugié et à ce que les recours concernant la persécution liée à l’ap- partenance au sexe féminin soient dûment reconnus ; (…)

6.2 Prévention de la traite des êtres humains

Voir aussi : á I. 2.2.4 C : Mécanisme de l’OSCE visant à aider les États participants à lutter contre la traite des êtres humains

230 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Prévention de la traite des êtres humains

6.2.1 Provisions générales relatives à la prévention Moscou 1991 (40) Les Etats participants (…)

(…)

(40.7) — s’efforceront d’éliminer toutes les formes (…) de traite des femmes et d’exploi- tation de la prostitution, notamment en assurant l’interdiction légale de tels actes et en prenant toutes autres mesures appropriées ;

Istanbul 1999 (Charte de sécurité européenne : III. Notre réponse commune) 24. Nous prendrons des mesures visant à (…) mettre fin à (…) l’exploitation sexuelle et à toute forme de trafic d’êtres humains. Afin de prévenir ces crimes, nous encouragerons, entre autres, l’adoption de nouvelles lois ou le renforcement de lois existantes pour tra- duire en justice les auteurs de tels actes et améliorer la protection des victimes.

Vienne 2000 (Décisions : Décision sur le renforcement des efforts de l’OSCE pour com- battre la traite des êtres humains) Le Conseil ministériel,

(…)

Constatant que la traite des êtres humains pose un problème croissant et convaincu de la nécessité pour l’OSCE de renforcer ses efforts pour combattre le trafic des êtres humains dans toute sa région, y compris pendant et après un conflit, et de contribuer à l’action contre la traite menée sur le plan national, régional et international pour défen- dre les droits de l’homme et combattre la criminalité transnationale organisée,

1. Réaffirme que la traite des êtres humains est une atteinte abjecte aux droits de l’homme et une grave infraction qui appelle une réponse plus globale et plus coordon- née de la part des Etats participants et de la communauté internationale, ainsi qu’une démarche plus cohérente qui fasse une plus grande part à la coopération entre les pays, et en particulier les pays d’origine, de transit et de destination ;

2. Se félicite de l’adoption, par l’Assemblée générale des Nations Unies, du Protocole additionnel à la Convention des Nations Unies contre la criminalité transnationale organisée visant à prévenir, réprimer et punir la traite des personnes en particulier des femmes et des enfants et de la définition de l’expression « traite des personnes », qui figure dans ledit Protocole, et adresse un appel à tous les Etats participants pour qu’ils signent et ratifient le Protocole des Nations Unies ainsi que le protocole facultatif se rapportant à la Convention relative aux droits de l’enfant concernant la vente d’enfants, la prostitution des enfants et la pornographie impliquant des enfants ;

Les engagements de la dimension humaine de l’OSCE 231 Engagements relatifs à des menaces précises pesant sur la sécurité des personnes Pa rt i e II

3. Reconnaît qu’il incombe au premier chef aux Etats participants de combattre la traite, en se fondant sur une démarche intégrée et coordonnée, qui inclut la prévention de la traite, la protection des victimes et la poursuite des trafiquants et de leurs complices ;

4. Souligne le rôle des parlements nationaux en ce qui concerne notamment l’adoption des lois nécessaires pour combattre la traite des êtres humains et accueille avec satisfac- tion les paragraphes 106 et 107 concernant la traite des personnes de la Déclaration de Bucarest adoptée par l’Assemblée parlementaire ;

5. Convient de renforcer les activités de l’OSCE visant à combattre la traite et souligne la nécessité d’intensifier la coopération entre les différentes institutions de l’OSCE ainsi qu’entre l’OSCE et d’autres organisations internationales, comme les organismes com- pétents des Nations Unies, l’Organisation internationale pour les migrations, le Conseil de l’Europe, l’Union européenne et Interpol ;

6. Appuie le travail de l’équipe spéciale sur la traite des êtres humains constituée dans le cadre du Pacte de stabilité et engage en particulier les gouvernements de la région concernée à jouer un rôle actif dans cette équipe spéciale ;

(…)

8. S’engage à susciter une prise de conscience, notamment avec l’aide du BIDDH, des organisations non gouvernementales et autres institutions compétentes, chez les agents de services publics comme les services de détection et de répression, les services judi- ciaires et consulaires ou les services d’immigration, en établissant, le cas échéant, des programmes de formation concernant tous les aspects de la traite ;

9. S’engage à prendre les mesures nécessaires, notamment en adoptant et en appliquant une législation correspondante, pour pénaliser la traite des êtres humains, en prévoyant, entre autres, des peines appropriées en vue d’assurer une réponse efficace en matière de détection et de répression et de poursuites. Cette législation devrait envisager le pro- blème de la traite dans l’optique des droits de l’homme et inclure une disposition rela- tive à la protection des droits fondamentaux des victimes, en faisant en sorte que les victimes ne fassent pas l’objet de poursuites pour la seule raison qu’elles ont été victi- mes de la traite ;

(…)

11. Encourage la nomination, le cas échéant, de représentants officiels pour les ques- tions de traite chargés de coordonner les activités nationales, d’assurer une coopération régionale et internationale et de mettre les informations résultant de ces contacts à la disposition d’autres Etats participants ;

(…)

Bucarest 2001 (Décisions : Décision No. 6) Le Conseil ministériel,

232 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Prévention de la traite des êtres humains

Réitérant son engagement à combattre toutes formes de traite des êtres humains, qui affectent tous les Etats participants,

Affirmant son engagement à développer la coopération et l’interaction entre les Etats participants dans les mesures de lutte contre la traite et les crimes qui s’y rattachent,

Demande aux Etats participants de signer et de ratifier la Convention des Nations Unies contre la criminalité transnationale organisée et en particulier le Protocole additionnel visant à prévenir, réprimer et punir la traite des personnes, en particulier des femmes et des enfants ;

(…)

Encourage un échange d’informations en vue de renforcer les enquêtes, l’application des lois et la prévention de la criminalité ;

Invite les Etats participants à accélérer l’adoption des mesures nécessaires pour s’ac- quitter des engagements pris au niveau ministériel à Vienne, en ce qui concerne notam- ment la prévention de la traite, la protection des victimes et la traduction en justice des auteurs de la traite et de leurs complices.

Porto 2002 (Déclaration sur la traite des êtres humains) I. Nous, membres du Conseil ministériel de l’OSCE, déclarons que la traite des êtres humains constitue une menace dangereuse pour la sécurité dans l’espace de l’OSCE et au‑delà.

Nous déclarons que la traite des êtres humains et d’autres formes modernes d’escla- vage constituent une atteinte à la dignité humaine et une violation flagrante des droits de l’homme.

Nous reconnaissons que la traite des êtres humains représente au sein de la criminalité transnationale organisée, un phénomène grave et en progression rapide, qui génère des profits considérables pour les réseaux criminels qui peuvent également être impliqués dans des actes criminels, tels que le trafic de drogue et d’armes ainsi que le trafic illicite de migrants.

Nous rappelons et réaffirmons notre pleine adhésion aux engagements de l’OSCE visant à lutter contre la traite des êtres humains (…) et nous nous déclarons résolus à renfor- cer la coopération en luttant contre la traite des êtres humains dans les pays d’origine, de transit et de destination.

(…) Nous déclarons que la ratification et la mise en œuvre intégrale de ces deux instru- ments [La Convention des Nations Unies contre la criminalité transnationale organi- sée et son Protocole additionnel visant à prévenir, réprimer et punir la traite des person- nes, en particulier des femmes et des enfants] permettraient de renforcer le cadre juri- dique international et national ainsi que les mesures prises pour lutter contre la traite

Les engagements de la dimension humaine de l’OSCE 233 Engagements relatifs à des menaces précises pesant sur la sécurité des personnes Pa rt i e II

des êtres humains. Nous encourageons vivement les Etats à envisager dans le même temps la ratification et la mise en œuvre intégrale du Protocole contre le trafic illicite de migrants par terre, air et mer qui complète la Convention susmentionnée.

(…)

II. Nous reconnaissons la nécessité de nous attaquer aux causes profondes de la traite et de réduire les inégalités et lacunes sur le plan économique et social qui sont également à l’origine de la migration clandestine et qui peuvent être exploitées par des réseaux cri- minels organisés à leur profit. Nous reconnaissons aussi qu’il importe de lutter contre la corruption qui facilite le fonctionnement de tels réseaux. (…)

Nous reconnaissons que, dans les pays de destination, la demande dont font l’objet les personnes victimes de la traite à des fins d’exploitation sexuelle, de travail forcé, d’es- clavage ou d’autres pratiques similaires à l’esclavage fait partie intégrante de la traite des êtres humains. Nous demandons instamment aux pays de destination de pren- dre des mesures afin de s’attaquer efficacement à cette demande en tant qu’un des élé- ments clefs de leur stratégie visant à prévenir et à combattre efficacement la traite des êtres humains, ainsi qu’à exercer une politique de « tolérance zéro » face à l’exploitation sexuelle, l’esclavage et l’exploitation du travail forcé sous toutes ses formes, quelle qu’en soit sa nature.

Nous sommes vivement préoccupés par les rapports qui font état de la participation de membres de missions d’organisations internationales à des activités liées à la traite des êtres humains, en particulier dans les pays émergeant d’une période de conflit. Nous réitérons l’importance de la Décision No 426 du Conseil permanent du 12 juillet 2001 sur la traite des êtres humains et encourageons l’adoption et la mise en œuvre de mesu- res pertinentes, telles que le Code de conduite de l’OSCE à l’intention des membres des missions. Nous ne tolérerons pas que des membres du personnel recrutés sur le plan international participent à des activités illégales, en favorisant ce commerce criminel ou en adoptant une attitude contraire à ce Code de conduite. Nous nous engageons à pren- dre toutes les mesures possibles pour assurer que les membres du personnel recrutés sur le plan international rendent compte à leurs autorités nationales et, le cas échéant, locales de telles activités.

Nous nous déclarons préoccupés par l’ampleur accrue du phénomène de la traite des mineurs et, reconnaissant les besoins spécifiques des enfants, nous appuyons le déve- loppement des recherches et des échanges d’informations sur la traite des enfants et, eu égard à l’intérêt supérieur de l’enfant qui doit toujours être le facteur principal à pren- dre en considération dans toutes les actions les concernant, nous demandons que soient élaborées des mesures spéciales pour veiller à ce que les mineurs victimes de la traite ne soient pas exploités davantage, en ayant à l’esprit leur bien-être psychologique et physi- que.

234 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Prévention de la traite des êtres humains

Nous nous efforcerons de mettre au point des mesures adéquates de prévention de la traite des êtres humains dans nos pays, sous la forme notamment de campagnes de sensibilisation ciblées et d’éducation dans les pays d’origine et de transit, à l’intention notamment de la jeunesse et d’autres groupes vulnérables, et nous nous attacherons à mettre au point des campagnes appropriées dans les pays de destination, à organiser des programmes de formation à l’intention des agents et d’autres personnels des forces de l’ordre, du contrôle des frontières, de la justice pénale et des services sociaux, et pour recommander leur coopération sans réserve avec les ONG dans ce domaine.

(…)

Nous réitérons la nécessité d’élaborer des stratégies nationales pour unifier notre action visant à lutter contre la traite des êtres humains et de renforcer la coordination entre les organisations nationales, internationales et régionales dans ce domaine. Des mesu- res telles que la désignation d’organes interministériels et de coordonnateurs nationaux ou, le cas échéant, d’autres organes ou mécanismes pertinents pourraient répondre à ce besoin.

III. Nous sommes disposés à intensifier une coopération, fondée sur une approche multidi- mensionnelle, entre les structures et les institutions pertinentes de l’OSCE, ainsi qu’en- tre l’OSCE et d’autres organisations et acteurs internationaux concernés, notamment l’Organisation des Nations Unies et ses institutions spécialisées, le Conseil de l’Europe, l’Union européenne et l’Organisation internationale pour les migrations, et nous char- geons le Conseil permanent d’examiner les moyens d’assurer une meilleure coopération en vue de combattre la traite des êtres humains.

(…)

Maastricht 2003 (Décisions : Décision No 2/03 sur la lutte contre la traite des êtres humains) Le Conseil ministériel,

(…)

1. Décide d’approuver le Plan d’action de l’OSCE pour lutter contre la traite des êtres humains, tel qu’il est annexé à la présente Décision ; et

2. Etablit, sous l’égide du Conseil permanent, un mécanisme de l’OSCE visant à por- ter assistance aux Etats participants pour lutter contre la traite des êtres humains. Ce mécanisme consistera en deux éléments dont les activités se complètent : d’une part, un représentant spécial nommé par la Présidence en exercice et, d’autre part, une unité spéciale au sein du Secrétariat de l’OSCE.

(…)

Les engagements de la dimension humaine de l’OSCE 235 Engagements relatifs à des menaces précises pesant sur la sécurité des personnes Pa rt i e II

Maastricht 2003 (Décisions : Annexe à la Décision No 2/03 sur la lutte contre la traite des êtres humains ; Plan d’action de l’OSCE pour lutter contre la traite des êtres humains) IV. Prévention de la traite des êtres humains (…)

1. Collecte de données et études

1.1 Collecter des données distinctes relatives aux femmes, aux hommes et aux enfants victimes de la traite, et améliorer l’étude et l’analyse de sujets tels que la nature et l’am- pleur de la traite des êtres humains et des mécanismes de traite et d’exploitation utili- sés par les groupes criminels organisés, afin d’élaborer des mesures efficaces et ciblées de prévention de la traite des êtres humains. Promouvoir les études et l’échange d’infor- mations sur la traite des enfants.

1.2 Identifier les couches les plus vulnérables de la population et élaborer des campa- gnes de sensibilisation spécialement conçues à leur intention.

1.3 Procéder à une analyse plus poussée des causes profondes de la traite des êtres humains, des facteurs de la demande et de l’offre en la matière, de ses réseaux et de ses répercussions économiques, ainsi que de ses liens avec les migrations illégales.

2. Mesures aux frontières

2.1 Sans préjudice des engagements internationaux relatifs à la libre circulation des per- sonnes, renforcer, dans la mesure du possible, les contrôles aux frontières nécessaires pour prévenir et détecter la traite des êtres humains.

2.2 Adopter les mesures législatives ou autres appropriées pour prévenir, dans la mesure du possible, l’utilisation des moyens de transport exploités par des transporteurs com- merciaux pour la commission d’infractions, telles que définies par les dispositions contre la traite.

2.3 Lorsqu’il y a lieu, et sans préjudice des conventions internationales applicables, obli- ger les transporteurs commerciaux, y compris toute compagnie de transport ou tout propriétaire ou exploitant d’un quelconque moyen de transport, à vérifier que tous les passagers sont en possession de documents de voyage en cours de validité. Conformé- ment au droit interne, prendre les mesures nécessaires pour prévoir des sanctions en cas de violation.

3. Politiques économiques et sociales visant à s’attaquer aux causes profondes de la traite des êtres humains

3.1 Dans les pays d’origine :

• Considérer comme objectifs prioritaires le renforcement de la stabilité sociale, écono- mique et politique, et la réduction tant des migrations provoquées par la pauvreté pro-

236 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Prévention de la traite des êtres humains

fonde que des facteurs de l’offre en matière de traite. Les politiques suivies pour cher- cher à atteindre ces objectifs devraient également promouvoir à la fois le développe- ment économique et l’intégration sociale ;

• Améliorer l’accès des enfants aux possibilités qui s’offrent en matière d’enseignement et de formation professionnelle et accroître le niveau de fréquentation scolaire, notam- ment des filles et des groupes minoritaires ;

• Offrir davantage de possibilités d’emploi aux femmes en favorisant la création de débouchés pour les petites et moyennes entreprises (PME). Organiser des stages de formation pour PME en ciblant en particulier les groupes à haut risque.

3.2 Dans les pays de destination :

• Mettre en œuvre des mesures visant à réduire « l’invisibilité de l’exploitation ». Un programme de suivi, de contrôles administratifs et de recueil de renseignements sur les marchés du travail et, le cas échéant, sur l’industrie du sexe, auquel participent plu- sieurs organisations, contribuera de manière significative à la réalisation de cet objec- tif ;

• Envisager la libéralisation par les gouvernements de leurs marchés du travail afin d’ac- croître les possibilités d’emploi pour des travailleurs possédant une large gamme de niveaux de qualification ;

• S’attaquer au problème de la main-d’œuvre non protégée, non officielle et souvent illé- gale, dans le but de parvenir à un équilibre entre la demande de main-d’œuvre peu coûteuse et les possibilités de migration régulière ;

• Lutter contre les activités économiques parallèles qui sapent les économies et stimu- lent la traite.

3.3 Dans les pays d’origine ou dans les pays de destination :

• Prendre des mesures pour accroître le niveau de protection sociale et créer des possi- bilités d’emploi pour tous ;

• Prendre les mesures appropriées pour éliminer la discrimination à l’égard des femmes dans le domaine de l’emploi afin de garantir, sur la base de l’égalité entre les sexes, le droit à une rémunération égale pour un travail égal et le droit à l’égalité des chances en matière d’emploi ;

• Lutter contre toutes les formes de discriminations à l’égard des minorités ;

• Elaborer des programmes qui offrent des moyens de subsistance alternatifs et incluent une éducation de base, l’alphabétisation, l’aptitude à communiquer et d’autres compé- tences, et qui réduisent les barrières à l’entreprenariat ;

Les engagements de la dimension humaine de l’OSCE 237 Engagements relatifs à des menaces précises pesant sur la sécurité des personnes Pa rt i e II

• Favoriser la sensibilisation aux différences entre les sexes et l’éducation à des relations égales et respectueuses entre les sexes, prévenant ainsi la violence à l’égard des fem- mes ;

• Faire en sorte que les politiques en place permettent aux femmes un accès égal aux ressources économiques et financières et le contrôle de ces ressources ;

• Promouvoir les moyens de financement flexibles et l’accès au crédit, notamment les microcrédits à faible taux d’intérêt ;

• Promouvoir la bonne gouvernance et la transparence dans les transactions économi- ques ;

• Adopter ou renforcer des mesures législatives, éducatives, sociales, culturelles ou d’autres mesures et, le cas échéant, la législation pénale, notamment dans le cadre d’une collaboration bilatérale et multilatérale, afin de décourager la demande qui favo- rise toutes les formes d’exploitation de personnes, en particulier des femmes et des enfants, et qui mène à la traite.

4. Activités de sensibilisation

4.1 Entreprendre, en coopération avec la société civile et les ONG, des campagnes d’in- formation visant à sensibiliser l’opinion publique à la traite sous ses diverses formes, notamment aux méthodes employées par les trafiquants et aux risques encourus par les victimes.

4.2 Améliorer la connaissance du phénomène de la traite parmi les autorités d’immi- gration ainsi que le personnel consulaire et diplomatique pour qu’ils appliquent ces connaissances dans leurs contacts quotidiens avec les victimes potentielles.

4.3 Encourager les ambassades nationales à diffuser, notamment par l’intermédiaire d’ONG, des informations sur la législation nationale applicable, telle que le droit de la famille, le droit du travail et la législation en matière d’immigration pouvant intéresser les migrants potentiels.

4.4 Renforcer la sensibilisation d’autres groupes cibles concernés à la traite des êtres humains, notamment les responsables de l’élaboration des politiques, les agents de la force publique, et autres personnels professionnels compétents, tels que les profession- nels de la santé, les fonctionnaires des services sociaux et des services du travail, et le secteur privé, pour accroître leur capacité à s’attaquer d’une manière appropriée à la traite et à renforcer leur capacité institutionnelle à contrer ce phénomène.

4.5 Encourager les sections consulaires et des visas des missions diplomatiques à uti- liser des documents imprimés et autres documents dans leurs activités impliquant des personnes à risque.

4.6 Accroître la sensibilisation des médias. La perception du problème de la traite des êtres humains par les médias devrait inclure une explication claire du phénomène et

238 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Prévention de la traite des êtres humains

une description réaliste des victimes. Pour optimiser les connaissances et la sensibilisa- tion de l’opinion publique, des campagnes de lutte contre la traite devraient être menées avec des professionnels des médias.

4.7 Axer les campagnes de sensibilisation également sur les groupes les plus vulnéra- bles, notamment les personnes appartenant aux minorités nationales, les enfants, les migrants et les personnes déplacées à l’intérieur de leur pays.

4.8 Etendre les campagnes de sensibilisation aux petites villes et villages où les popula- tions peuvent être particulièrement exposées.

4.9 Travailler dans les écoles et les universités ainsi que directement avec les familles pour atteindre les jeunes et les sensibiliser davantage à la traite.

4.10 S’attaquer, également au travers des médias, à la nécessité de réduire la demande de personnes faisant l’objet de la traite à des fins d’exploitation sexuelle, de travail forcé, d’esclavage ou d’autres pratiques analogues à l’esclavage et, à cet égard, promouvoir la « tolérance zéro » à l’égard de toutes les formes de traite.

4.11 Mettre en place des permanences téléphoniques médiatisées dans les pays d’ori- gine, de transit et de destination, dans un triple objectif : faire fonction de source indé- pendante de conseil et d’orientation aux victimes potentielles susceptibles d’envisager un emploi ou d’autres offres pour partir à l’étranger, faire fonction de premier point de contact permettant d’accéder à un mécanisme d’orientation pour les victimes de la traite des êtres humains, et enfin, favoriser le signalement anonyme de cas réels ou pré- sumés de la traite des êtres humains.

5. Mesures législatives

5.1 Adopter ou revoir la législation, les contrôles administratifs et les procédures concer- nant l’autorisation et le fonctionnement des secteurs d’activité qui, selon les services de renseignements, peuvent être impliqués dans la traite, comme par exemple les agences pour l’emploi, les agences de voyage, les agences de travail au pair, les agences d’adop- tion ou les agences de vente d’épouses par correspondance, ainsi que les hôtels et les services d’escorte.

5.2 Veiller à ce que les mesures adoptées pour prévenir et combattre la traite des per- sonnes n’aient pas d’effets négatifs sur les droits et la dignité des personnes, notamment leur liberté de circulation.

(…)

VI. Mécanismes de suivi et de coordination Outre le suivi de la mise en œuvre des engagements de l’OSCE par les Etats participants par le biais des mécanismes existants de l’OSCE, notamment la Réunion annuelle sur la mise en œuvre des engagements concernant la dimension humaine, les conférences d’examen et manifestations pertinentes dans le domaine de la dimension humaine.

Les engagements de la dimension humaine de l’OSCE 239 Engagements relatifs à des menaces précises pesant sur la sécurité des personnes Pa rt i e II

Le Conseil permanent recommande que les mesures ci‑après soient prises au niveau national :

1. Envisager de nommer des Rapporteurs nationaux ou d’établir d’autres mécanismes, pour suivre les activités de lutte contre la traite menées par les institutions d’Etat et mettre en œuvre les obligations prévues par la législation nationale ;

2. Envisager de mettre en place des Commissions de lutte contre la traite (équipes spé- ciales) ou organes similaires chargés de coordonner les activités menées à l’échelle d’un pays dans les organismes d’Etat et les ONG, et d’élaborer des mesures visant à prévenir la traite, à sanctionner leurs auteurs et à en protéger les victimes ;

3. Améliorer la coopération entre les institutions d’Etat et les ONG nationales chargées de fournir protection et assistance aux victimes de la traite, de combattre la violence à l’encontre des femmes et des enfants, de promouvoir l’égalité entre les sexes et de mener des campagnes de sensibilisation aux questions des droits de l’homme ;

Sofia 2004 (Décisions : Décision No 13/04 sur les besoins spéciaux des enfants victimes de la traite en matière de protection et d’assistance) Le Conseil ministériel,

(…)

Rappelant les principes relatifs à la protection et au respect des droits de l’homme, tels qu’ils figurent dans la Convention des Nations Unies de 1989 relative aux droits de l’en- fant et le Protocole facultatif y afférent, adopté en l’an 2000, concernant la vente d’en- fants, la prostitution des enfants et la pornographie mettant en scène des enfants, le Pro- tocole des Nations Unies de 2000 visant à prévenir, réprimer et punir le trafic de per- sonnes, en particulier des femmes et des enfants, complétant la Convention des Nations Unies contre la criminalité transnationale organisée, ainsi que dans la Convention de La Haye de 1993 sur la protection des enfants et la coopération en matière d’adoption internationale,

Ayant à l’esprit la responsabilité principale qui incombe aux Etats participants de lutter contre la traite en se fondant sur une approche intégrée et coordonnée qui comprend la prévention de la traite, la protection des victimes ainsi que l’engagement de poursuites contre les trafiquants et leurs complices,

Réaffirmant que les principes généraux concernant, entre autres, l’intérêt supérieur de l’enfant, la non‑discrimination, la participation, la survie et le développement fournis- sent le cadre à toutes les actions concernant les enfants,

Déterminé à renforcer les efforts entrepris par l’OSCE pour lutter contre la traite des êtres humains et à continuer de mettre activement en œuvre le Plan d’action correspon- dant, ainsi que d’appuyer, par le biais de l’Organisation, les Etats participants, sur leur demande, dans l’exécution de leurs activités nationales respectives dans ce domaine,

240 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Prévention de la traite des êtres humains

Prenant notamment en considération les recommandations contenues dans le Plan d’ac- tion de l’OSCE pour lutter contre la traite des êtres humains selon lesquelles l’OSCE accordera une attention particulière à la question de la traite des enfants et reconnaîtra également la vulnérabilité des enfants non accompagnés et séparés,

Ayant à l’esprit que les Etats participants se sont engagés à protéger les enfants contre toute forme de violence, notamment l’exploitation sexuelle, et soulignant l’importance du respect de leurs besoins spéciaux en matière de protection et d’assistance, et de la possibilité pour l’enfant d’être entendu,

Insistant sur le fait que les mesures visant à lutter contre la traite des enfants devraient intégrer une démarche soucieuse d’égalité entre les sexes et être non discriminatoires,

Soulignant que l’intérêt supérieur de l’enfant doit être une considération primordiale dans les décisions concernant les enfants victimes de la traite, notamment en assurant la représentation, le cas échéant, des enfants victimes,

Conscient de la nécessité d’un cadre efficace en matière d’assistance et de protection de l’enfant, ainsi que d’une sensibilisation visant à contrer la demande qui favorise toutes les formes d’exploitation humaine, en particulier des femmes et des enfants, et qui rend les enfants encore plus vulnérables à la traite,

1. Décide de renforcer les efforts de l’OSCE visant à prévenir la traite des enfants, à protéger et à assister les enfants victimes de la traite et à poursuivre les auteurs de tels actes en tenant compte du Plan d’action de l’OSCE pour lutter contre la traite des êtres humains ;

2. Encourage les Etats participants à renforcer les structures gouvernementales com- pétentes pour les enfants. Encourage également les Etats participants à intensifier les actions, le cas échéant, conformément aux recommandations pertinentes destinées aux Etats participants contenues dans le Plan d’action de l’OSCE pour lutter contre la traite des êtres humains et visant à contrer les facteurs qui contribuent à rendre les enfants particulièrement vulnérables à la traite, tels que la discrimination, fondée notamment, sur la race, le sexe, la religion ou la croyance, l’origine nationale ou sociale, la naissance ou autre situation ; l’exploitation, telle que définie dans le Plan d’action de l’OSCE pour lutter contre la traite des êtres humains ; la pauvreté, le manque d’éducation et le dépla- cement ;

3. Convient d’intensifier les efforts visant à contrer la demande, en combattant notam- ment le tourisme sexuel impliquant les enfants. Dans ce contexte, invite les Etats par- ticipants à envisager l’élaboration de mesures légales afin de poursuivre leurs citoyens pour exploitation sexuelle des enfants, même si l’exploitation a eu lieu dans un autre pays. (…)

Les engagements de la dimension humaine de l’OSCE 241 Engagements relatifs à des menaces précises pesant sur la sécurité des personnes Pa rt i e II

6.2.2 Enquête, application de la loi et poursuites judiciaires Istanbul 1999 (Charte de sécurité européenne : III. Notre réponse commune) 24. Nous prendrons des mesures visant à (…) mettre fin à (…) toute forme de trafic d’êtres humains. Afin de prévenir ces crimes, nous encouragerons, entre autres, l’adop- tion de nouvelles lois ou le renforcement de lois existantes pour traduire en justice les auteurs de tels actes (…).

Vienne 2000 (Décisions : Décision sur le renforcement des efforts de l’OSCE pour com- battre la traite des êtres humains) Le Conseil ministériel,

(…)

3. Reconnaît qu’il incombe au premier chef aux Etats participants de combattre la traite, en se fondant sur une démarche intégrée et coordonnée, qui inclut la prévention de la traite, la protection des victimes et la poursuite des trafiquants et de leurs complices ;

(…)

9. S’engage à prendre les mesures nécessaires, notamment en adoptant et en appliquant une législation correspondante, pour pénaliser la traite des êtres humains, en prévoyant, entre autres, des peines appropriées en vue d’assurer une réponse efficace en matière de détection et de répression et de poursuites. Cette législation devrait envisager le pro- blème de la traite dans l’optique des droits de l’homme et inclure une disposition rela- tive à la protection des droits fondamentaux des victimes, en faisant en sorte que les victimes ne fassent pas l’objet de poursuites pour la seule raison qu’elles ont été victi- mes de la traite ;

Bucarest 2001 (Décisions : Décision No. 6) Le Conseil ministériel,

(…)

Encourage un échange d’informations en vue de renforcer les enquêtes, l’application des lois et la prévention de la criminalité ;

Porto 2002 (Déclaration sur la traite des êtres humains) II. (…)

Nous engageons tous les Etats participants à renforcer la coopération internationale pour lutter contre la criminalité transnationale organisée, notamment les actes crimi- nels, tels que le trafic de drogue et d’armes, ainsi que le trafic illicite de migrants. Cette coopération devrait englober des organismes internationaux de police, tels qu’Europol et Interpol, ainsi que l’Initiative de coopération en Europe du Sud‑Est, afin d’enquêter

242 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Prévention de la traite des êtres humains

sur les auteurs de la traite des êtres humains et de les traduire en justice conformément à la législation nationale et, le cas échéant, aux obligations internationales. (…)

Maastricht 2003 (Décisions : Annexe à la Décision No 2/03 sur la lutte contre la traite des êtres humains ; Plan d’action de l’OSCE pour lutter contre la traite des êtres humains) III. Enquêtes, détection, répression et poursuites (…)

Action recommandée au niveau national 1. Incrimination

1.1 Adopter les mesures législatives et autres nécessaires pour conférer le caractère d’infraction pénale aux actes énoncés à l’Article 3 du Protocole additionnel à la Conven- tion des Nations Unies contre la criminalité transnationale organisée visant à prévenir, réprimer et punir la traite des personnes, en particulier des femmes et des enfants.

1.2 Adopter les mesures législatives et autres nécessaires pour conférer le caractère d’in- fraction pénale :

• Au fait de tenter de commettre cette infraction pénale ;

• Au fait de se rendre complice de cette infraction pénale ;

• Au fait d’organiser la commission de cette infraction pénale ou de donner des instruc- tions à d’autres personnes pour qu’elles la commettent.

1.3 Adopter les mesures nécessaires pour établir la responsabilité des personnes mora- les pour des infractions en matière de traite des êtres humains outre la responsabilité des personnes physiques. Sous réserve des principes juridiques de l’Etat participant, la responsabilité des personnes morales peut être pénale, civile ou administrative.

1.4 Prendre des dispositions législatives pour des sanctions pénales efficaces et propor- tionnées, y compris l’emprisonnement, qui tiennent compte du caractère grave de cette infraction. Le cas échéant, la législation devrait prévoir des sanctions supplémentaires pour les personnes coupables de traite avec des circonstances aggravantes, comme dans le cas d’infractions impliquant la traite des enfants ou d’infractions commises par ou avec la complicité d’agents de l’Etat.

1.5 Envisager des dispositions législatives pour permettre la confiscation des instru- ments et du produit de la traite et des infractions connexes, en précisant, lorsque ce n’est pas en contradiction avec la législation nationale, que le produit confisqué de la traite sera utilisé au profit des victimes de la traite. Envisager la création d’un Fonds de compensation pour les victimes de la traite et l’utilisation des actifs confisqués pour aider à financer un tel Fonds.

Les engagements de la dimension humaine de l’OSCE 243 Engagements relatifs à des menaces précises pesant sur la sécurité des personnes Pa rt i e II

1.6 Faire en sorte que la traite, ses actes constitutifs et infractions connexes constituent des infractions pouvant faire l’objet d’une extradition en vertu du droit national et des traités d’extradition.

1.7 Adopter les mesures législatives et autres pour conférer le caractère d’infraction pénale aux actes de corruption active ou passive commis par des agents publics, confor- mément aux Articles 8 et 9 de la Convention des Nations Unies contre la criminalité transnationale organisée.

1.8 Faire en sorte que les victimes de la traite ne fassent pas l’objet de poursuites pénales du simple fait d’avoir été soumises à la traite.

2. Réaction des services chargés de la détection et de la répression

2.1 Mettre pleinement en œuvre les mesures de lutte contre la traite et autres mesures connexes énoncées dans la législation.

2.2 Créer des unités spéciales de lutte contre la traite, comprenant à la fois des femmes et des hommes, qui ont suivi une formation avancée à l’investigation des infractions impliquant des agressions sexuelles ou impliquant des enfants, afin de promouvoir les compétences, le professionnalisme et l’intégrité.

2.3 Renforcer les capacités dans le domaine de la lutte contre la corruption.

2.4 Elaborer des programmes pour une police de proximité : renforcer la confiance entre la police et le public afin, entre autres, de contribuer à la collecte d’informations relati- ves à la traite et de faire en sorte que les victimes soient davantage disposées à signaler les infractions.

2.5 Renforcer la coopération entre les organes chargés des enquêtes dans le cadre des services de détection et de répression afin d’établir si les actifs suspects sont d’origine éventuellement criminelle et liée à la traite

2.6 Fournir non seulement les ressources et la formation nécessaires pour développer les activités de police fondées sur le recueil de renseignements pour la gestion et l’ana- lyse des crimes et des informations à ce sujet, mais également les compétences avancées et les équipements nécessaires pour permettre aux services de détection et de répres- sion de s’acquitter de leurs tâches en matière de lutte contre la traite.

2.7 Encourager les enquêteurs et les procureurs à mener des enquêtes et à intenter des poursuites sans s’appuyer uniquement et exclusivement sur les dépositions de témoins. Envisager d’autres méthodes d’enquête afin d’éviter que les victimes ne soient obligées de témoigner au tribunal.

2.8 Prendre des mesures applicables pour faire en sorte que les membres des missions de l’OSCE qui se comportent en violation du Code de conduite de l’OSCE et d’autres règlements fassent l’objet de sanctions réglementaires, notamment, le cas échéant, de poursuites disciplinaires et pénales.

244 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Prévention de la traite des êtres humains

2.9 S’attaquer en priorité à la corruption des services locaux de détection et de répres- sion, et faire en sorte que les poursuites disciplinaires et pénales appropriées soient engagées contre les services de détection et de répression se livrant à des pratiques de corruption liées à la traite des êtres humains.

3. Coopération et échange d’informations entre Etats participants en matière de détec- tion et de répression

3.1 Coopérer étroitement entre eux et conformément à leurs systèmes juridiques et administratifs respectifs, en vue de renforcer l’efficacité de la détection et de la répres- sion des infractions visées par le présent Plan d’action. Promouvoir une coopération et une coordination similaires entre les organismes chargés de faire respecter la loi à l’in- térieur des Etats.

3.2 Adopter, en particulier, des mesures efficaces pour :

• Renforcer ou, si nécessaire, établir des voies de communication entre Etats partici- pants ;

• Coopérer dans la conduite d’enquêtes concernant les infractions visées par le présent Plan d’action ;

• Fournir, lorsqu’il y a lieu, les pièces ou les preuves nécessaires à des fins d’analyse ou d’enquête ;

• Faciliter une coordination efficace entre les autorités, organismes et services compé- tents et favoriser l’échange de personnel et d’experts, y compris, sous réserve de l’exis- tence d’accords ou d’arrangements bilatéraux entre les Etats participants concernés, le détachement d’agents de liaison ;

• Echanger des informations sur les moyens et procédés spécifiques employés par les groupes criminels organisés, y compris, s’il y a lieu, sur les itinéraires et les moyens de transport ainsi que sur l’usage de fausses identités, de documents modifiés ou falsifiés ou d’autres moyens de dissimulation de leurs activités ;

• Coordonner les mesures administratives et autres considérées comme appropriées pour détecter au plus tôt les infractions visées par le présent Plan d’action.

3.3 Conclure des accords prévoyant une coopération bilatérale et multilatérale entre les services de détection et de répression pour faciliter l’échange d’informations.

3.4 Prendre des mesures visant à élaborer des normes communes pour la collecte de données statistiques.

4. Octroi d’une assistance et d’une protection aux témoins et aux victimes dans le sys- tème de justice pénale

Les engagements de la dimension humaine de l’OSCE 245 Engagements relatifs à des menaces précises pesant sur la sécurité des personnes Pa rt i e II

4.1 Prendre des mesures appropriées, y compris des mesures législatives, dans les limi- tes des moyens des Etats participants, afin d’assurer une protection efficace contre des actes éventuels de représailles ou d’intimidation pour les témoins qui, dans le cadre de procédures pénales, font un témoignage concernant les infractions visées par le présent Plan d’action et, le cas échéant, pour leurs parents et d’autres personnes qui leur sont proches.

4.2 Sensibiliser les services de détection et de répression et les responsables de la lutte contre la criminalité à leurs responsabilités pour assurer la sécurité et le bien‑être immédiat des victimes de la traite des êtres humains.

4.3 Assurer la protection des données et le droit des victimes au respect de la vie privée, également dans le cadre de la collecte et de l’analyse des données.

4.4 Faciliter la participation de la victime en qualité de témoin à l’enquête et aux audien- ces des tribunaux ou autres procédures pénales en prévoyant la possibilité de lui fournir un nouveau domicile en tant que forme de protection des témoins.

4.5 Fournir des conseils juridiques aux victimes lorsqu’elles prennent la décision de témoigner ou non au tribunal.

4.6 Permettre aux ONG de fournir un appui aux victimes dans le cadre des audiences, si cela n’est pas contraire à la législation nationale.

5. Formation

5.1 Assurer ou améliorer la formation des agents des services de surveillance des fron- tières, des agents des forces de l’ordre, des juges, des procureurs, des agents des services d’immigration et autres agents compétents à tous les aspects de la traite des personnes.

5.2 Prendre en considération, dans de tels programmes de formation, les droits de l’homme et les questions concernant les enfants et la parité des sexes, et encourager la coopération avec les organisations non gouvernementales et les autres organisations compétentes ainsi qu’avec d’autres éléments de la société civile.

6. Mesures aux frontières

6.1 Envisager de prendre des mesures qui permettent à chaque Etat participant, confor- mément à son droit interne, de refuser l’entrée de personnes impliquées dans la com- mission d’infractions établies conformément à la législation en vigueur, d’annuler leurs visas ou, éventuellement, de les détenir temporairement.

6.2 Envisager de renforcer la coopération entre services de contrôle aux frontières, notamment par l’établissement et le maintien de voies de communication directes.

7. Sécurité et contrôle des documents

246 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Prévention de la traite des êtres humains

7.1 Prendre les mesures nécessaires, selon les moyens disponibles, pour faire en sorte que les documents de voyage ou d’identité délivrés par les Etats participants ou pour leur compte soient d’une qualité telle qu’on ne puisse facilement en faire un usage impropre ou les falsifier ou les modifier, les reproduire ou les délivrer illicitement.

8. Légitimité et validité des documents

8.1 A la demande d’un autre Etat participant, vérifier, conformément à son droit interne et dans un délai raisonnable, la légitimité et la validité des documents de voyage ou d’identité délivrés ou censés avoir été délivrés en son nom, où il existe des motifs rai- sonnables de soupçonner qu’ils sont utilisés pour la traite des personnes.

Sofia 2004 (Décisions : Décision No 13/04 sur les besoins spéciaux des enfants victimes de la traite en matière de protection et d’assistance) Le Conseil ministériel,

(…)

1. Décide de renforcer les efforts de l’OSCE visant à prévenir la traite des enfants, (…) et à poursuivre les auteurs de tels actes ;

(…)

3. Convient d’intensifier les efforts visant à contrer la demande, en combattant notam- ment le tourisme sexuel impliquant les enfants. Dans ce contexte, invite les Etats par- ticipants à envisager l’élaboration de mesures légales afin de poursuivre leurs citoyens pour exploitation sexuelle des enfants, même si l’exploitation a eu lieu dans un autre pays ;

6.2.3 Protection des victimes et provision d’assistance Istanbul 1999 (Charte de sécurité européenne : III. Notre réponse commune) 24. Nous prendrons des mesures visant à (…) mettre fin à la violence exercée contre les femmes et les enfants de même qu’à l’exploitation sexuelle et à toute forme de tra- fic d’êtres humains. Afin de prévenir ces crimes, nous encouragerons, entre autres, (…) [l’amélioration] de la protection des victimes.

Vienne 2000 (Décisions : Décision sur le renforcement des efforts de l’OSCE pour com- battre la traite des êtres humains) Le Conseil ministériel,

(…)

3. Reconnaît qu’il incombe au premier chef aux Etats participants de combattre la traite, en se fondant sur une démarche intégrée et coordonnée, qui inclut (…) la protection des victimes (…).

Les engagements de la dimension humaine de l’OSCE 247 Engagements relatifs à des menaces précises pesant sur la sécurité des personnes Pa rt i e II

(…)

9. S’engage à prendre les mesures nécessaires, notamment en adoptant et en appli- quant une législation correspondante, pour pénaliser la traite des êtres humains (…). Cette législation devrait envisager le problème de la traite dans l’optique des droits de l’homme et inclure une disposition relative à la protection des droits fondamentaux des victimes, en faisant en sorte que les victimes ne fassent pas l’objet de poursuites pour la seule raison qu’elles ont été victimes de la traite ;

10. Envisagera l’adoption de mesures législatives ou d’autres mesures appropriées, par exemple en matière d’hébergement, qui permettent aux victimes de la traite des per- sonnes de rester sur leur territoire à titre temporaire ou permanent lorsqu’il y a lieu ; la mise en place de processus appropriés de rapatriement des victimes de la traite, compte dûment tenu de la sécurité de ces personnes, en leur délivrant notamment les docu- ments voulus ; et la définition de politiques concernant l’octroi de prestations écono- miques et sociales aux victimes de même que leur réadaptation et réinsertion dans la société ;

(…)

Porto 2002 (Déclaration sur la traite des êtres humains) Nous nous emploierons à prêter assistance et accorder protection aux victimes de la traite, notamment aux femmes et aux enfants, et à cette fin, le cas échéant, à établir des mécanismes nationaux d’orientation efficaces et ouverts à tous, pour veiller à ce que les victimes de la traite ne soient pas passibles de poursuites du seul fait d’avoir été l’objet de la traite. La dignité et les droits des victimes sont à respecter en tous temps. (…)

Nous reconnaissons qu’une intensification de la coopération entre les acteurs pertinents dans les pays d’origine, de transit et de destination est primordiale pour les programmes de retour destinés aux victimes de la traite et facilite leur réinsertion. Nous encoura- geons donc toutes les organisations qui fournissent une assistance aux victimes, notam- ment les ONG, à continuer à développer une telle coopération.

Nous envisagerons d’adopter des mesures législatives ou autres qui permettent aux vic- times de la traite de rester sur leur territoire, à titre temporaire ou, dans les cas appro- priés, à titre permanent, et de tenir dûment compte des facteurs humanitaires et humains.

Maastricht 2003 (Décisions : Annexe à la Décision No 2/03 sur la lutte contre la traite des êtres humains ; Plan d’action de l’OSCE pour lutter contre la traite des êtres humains) V. Protection et assistance (…)

1. Collecte de données et études

248 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Prévention de la traite des êtres humains

1.1 Recueillir des données par l’échange et l’analyse des meilleures pratiques et d’autres informations visant à assurer une protection et une assistance efficaces aux victimes de la traite dans les Etats participants de l’OSCE.

2. Mesures législatives

2.1 Etudier la nécessité d’adopter une législation qui offre une base juridique à la fourni- ture d’une assistance et d’une protection aux victimes de la traite des êtres humains, en particulier au cours des enquêtes préliminaires et de la procédure judiciaire.

2.2 Ratifier le Protocole additionnel à la Convention des Nations Unies contre la crimi- nalité transnationale organisée, visant à prévenir, réprimer et punir la traite des person- nes, en particulier des femmes et des enfants, ou y adhérer et l’appliquer pleinement.

3. Mécanismes nationaux d’orientation*

3.1 Mettre en place des mécanismes nationaux d’orientation en créant un cadre de coo- pération à l’intérieur duquel les Etats participants s’acquittent de leurs obligations visant à protéger et à promouvoir les droits de l’homme des victimes de la traite en coordina- tion et partenariat stratégique avec la société civile et d’autres acteurs travaillant dans ce domaine. (*Le Manuel du BIDDH sur les directives et principes régissant l’élabora- tion et la mise en œuvre des mécanismes nationaux d’orientation peut servir de source utile de conseils et d’informations sur le rôle de ces mécanismes nationaux d’orienta- tion pour apporter assistance et protection aux victimes de la traite.)

3.2 Fournir des avis en vue de faciliter l’identification précise et le traitement approprié des victimes de la traite des êtres humains, par des moyens qui respectent les opinions et la dignité des personnes concernées.

3.3 Combiner les efforts des services de détection et de répression, notamment des uni- tés de spécialistes de la lutte contre la traite et de la police locale, des services d’immi- gration et de surveillance des frontières, des groupes de protection sociale, des institu- tions médicales ainsi que des ONG et d’autres institutions de la société civile en tant qu’acteurs les plus pertinents pour participer aux activités des mécanismes nationaux d’orientation.

3.4 Etablir des mécanismes appropriés pour harmoniser l’assistance aux victimes avec les actions menées en matière d’enquêtes et de poursuites.

3.5 Accorder une attention particulière à la nécessité d’accroître la coopération entre la police et les ONG en vue d’identifier, d’informer et de protéger les victimes de la traite.

3.6 Associer les activités des mécanismes nationaux d’orientation avec celles des orga- nismes interministériels, des coordonnateurs nationaux, des ONG et d’autres institu- tions nationales pertinentes afin d’établir une équipe intersectorielle et multidiscipli- naire capable de mettre au point et de surveiller l’application des politiques de lutte contre la traite.

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4. Centres d’accueil

4.1 Créer des centres d’accueil, gérés par les organes gouvernementaux, les ONG et d’autres institutions de la société civile afin de répondre aux besoins des victimes de la traite ; ces centres d’accueil doivent être sûrs, fournir un accès à des avis et conseils, en toute indépendance, dans une langue que la victime comprend, une assistance médicale d’urgence et la possibilité d’un délai de réflexion après le traumatisme. Des centres d’ac- cueil peuvent être créés dans des installations déjà existantes, telles que les centres d’ac- cueil d’urgence à l’intention des femmes.

4.2 Fournir un accès aux centres d’accueil pour toutes les victimes de la traite, qu’elles soient ou non disposées à coopérer avec les autorités dans le cadre des enquêtes.

4.3 Veiller tout particulièrement à assurer la sécurité du personnel de ces centres d’ac- cueil, la confidentialité des informations recueillies, ainsi que la sécurité et le respect de la vie privée des victimes de la traite.

4.4 Utiliser les centres d’accueil comme cadre pour dispenser aux victimes de la traite le type de formation qui facilitera leur réintégration, leur emploi et leur indépendance, et améliorera leur compétitivité après le traumatisme dont elles ont fait l’objet.

5. Fourniture de documents

5.1 Assurer la fourniture de documents, si nécessaire, comme première étape visant à préciser l’identité et la situation des victimes dans les pays de destination pour per- mettre ainsi d’offrir diverses possibilités d’assistance dans les cas appropriés, tels que le rapatriement, de préférence librement consenti, l’octroi d’un permis de séjour tempo- raire ou permanent et/ou la légalisation de l’emploi.

5.2 Renforcer la coopération parmi les services de détection et de répression dans les pays d’origine, de transit et de destination et parmi les responsables de toutes les ins- titutions œuvrant au rétablissement des droits des victimes de la traite, notamment le personnel des ambassades et des consulats des Etats participants afin de faciliter la véri- fication rapide des données personnelles et d’éviter tout retard injustifié ou déraison- nable.

5.3 Informer les victimes identifiées de la traite de leurs droits d’accéder aux représen- tants diplomatiques et consulaires du pays de leur nationalité.

6. Fourniture d’une assistance sociale

6.1 Mettre en place des programmes d’intégration et d’assistance sociale, des conseils juridiques dans une langue que les victimes comprennent, une assistance médicale et psychologique ainsi que des soins de santé dont elles peuvent disposer soit dans les cen- tres d’accueil, soit dans d’autres institutions compétentes.

6.2 Envisager, lorsqu’elles ne sont pas incompatibles avec la législation nationale, des mesures juridiques autorisant l’utilisation d’avoirs confisqués pour compléter les fonds

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versés par les gouvernements à des programmes visant à satisfaire les besoins des victi- mes de la traite et compenser les victimes en fonction de la gravité du crime commis à leur encontre.

7. Rapatriement, réadaptation et réintégration

7.1 Favoriser le rapatriement — de préférence librement consenti — des victimes de la traite dans le pays d’origine, compte dûment tenu de leur sécurité et de celle de leur famille sans retard injustifié ou déraisonnable.

7.2 S’engager à faire respecter la légalité dans toutes les procédures de retour et de trans- fert des victimes tout en adoptant une attitude humaine et compatissante.

7.3 Envisager de contribuer à la réadaptation et la réintégration sociale des victimes de la traite en les faisant bénéficier d’avantages sociaux et économiques.

7.4 Accroître la sensibilisation des médias à la nécessité de protéger la vie privée des vic- times en évitant que leur nom ne soit divulgué publiquement, ou que soient publiées des informations confidentielles préjudiciables à leur sécurité ou ne servant pas la cause de la justice au cours de la procédure pénale.

8. Octroi d’un délai de réflexion et d’un permis de séjour permanent ou temporaire

8.1 Envisager l’introduction d’un délai de réflexion pour donner à la victime le temps nécessaire pour décider de témoigner ou non.

8.2 Envisager au cas par cas, s’il y a lieu, d’accorder un permis de séjour permanent ou temporaire, en tenant compte de facteurs tels que les dangers potentiels encourus par la victime.

8.3 Envisager, le cas échéant, d’octroyer des permis de travail aux victimes pendant la durée de leur séjour dans le pays d’accueil.

9. Garantir le droit de demander asile

9.1 Faire le nécessaire pour que les lois, les politiques, les programmes et les initiatives de lutte contre la traite ne soient pas préjudiciables aux droits de chacun, notamment des victimes, face à la persécution, de demander et d’obtenir l’asile, conformément au droit international relatif aux réfugiés, en particulier en appliquant efficacement le prin- cipe du non-refoulement.

10. Protection des enfants

10.1 Faire le nécessaire pour que les besoins spécifiques des enfants et leur intérêt supé- rieur soient pleinement pris en considération lors de la prise de décisions sur l’héberge- ment, l’éducation et les soins appropriés les concernant. Dans certains cas, en l’absence de risque direct pour la sécurité de l’enfant, leur fournir la possibilité d’accéder aux sys- tèmes éducatifs relevant de l’Etat.

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10.2 Ne décider du rapatriement d’un enfant victime de la traite qu’après avoir pris plei- nement en considération toutes les circonstances de chaque cas et que s’il existe une famille ou une institution spécialisée dans le pays d’origine qui soit en mesure de veiller à la sécurité, à la protection, à la réadaptation et à la réintégration de l’enfant.

10.3 Examiner les dispositions énoncées dans les principes directeurs relatifs à la pro- tection des mineurs non accompagnés du Haut Commissaire des Nations Unies pour les réfugiés lors de l’élaboration de politiques visant ce groupe à risque et notamment les personnes qui ne possèdent pas de documents d’identité.

10.4 Recourir à des accords bilatéraux et/ou régionaux relatifs aux principes fondamen- taux concernant la bonne réception des enfants non accompagnés afin de conjuguer tous les efforts visant à protéger les enfants.

10.5 Ratifier le Protocole facultatif à la Convention relative aux droits de l’enfant, concer- nant la vente d’enfants, la prostitution des enfants et la pornographie mettant en scène des enfants, ou y adhérer et le mettre pleinement en œuvre.

Action des institutions et organes de l’OSCE

11. Mécanisme national d’orientation

11.1 Renforcer les activités de l’OSCE, notamment du BIDDH, en aidant les Etats parti- cipants, s’ils le demandent, à mettre en place le mécanisme national d’orientation.

11.2 Prier l’Unité de l’OSCE pour les questions stratégiques de police, en même temps que le BIDDH, d’élaborer plus avant des directives et un manuel sur l’identification des victimes présumées de la traite des êtres humains et sur les preuves de la traite afin d’aider, s’il y a lieu, les Etats participants.

(…)

14. Formation

(…)

14.2 Charger le BIDDH de recueillir et de diffuser des informations sur les mesures, les programmes de formation et les documents déjà existants dans les Etats participants de l’OSCE.

15. Mesures législatives

15.1 En coordination avec l’Office des Nations Unies contre la drogue et le crime, le Conseil de l’Europe et les autres acteurs concernés, le BIDDH continuera à aider les Etats participants, sur leur demande, à mettre leur législation nationale en conformité avec les normes et règles internationales, en encourageant en particulier une attitude humaine et compréhensive à l’égard des victimes de la traite.

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Sofia 2004 (Décisions : Décision No 13/04 sur les besoins spéciaux des enfants victimes de la traite en matière de protection et d’assistance) Le Conseil ministériel,

(…)

1. Décide de renforcer les efforts de l’OSCE visant à prévenir la traite des enfants, à pro- téger et à assister les enfants victimes de la traite (…)

6.3 Prévention du commerce illicite de drogues, d’armes et d’autres formes de crime organisé à l’échelle internationale

Voir aussi : á II. 6.2 : Prévention de la traite des êtres humains á II. 6.4 : Prévention du terrorisme

Paris 1990 (Une nouvelle ère de démocratie, de paix et d’unité) Nous unirons (…) nos forces pour lutter contre le trafic des stupéfiants.

Helsinki 1992 (Déclaration du sommet) 27. Le trafic des stupéfiants constitue un danger pour la stabilité de nos sociétés et de nos institutions démocratiques. Nous collaborerons pour renforcer toutes les formes de coopération bilatérale et multilatérale dans la lutte contre le trafic des stupéfiants et les autres formes de criminalité internationale organisée.

Bucarest 2001 (Déclaration ministérielle) 4. (…) La criminalité organisée, le trafic illicite de drogues et d’armes et la traite des êtres humains portent atteinte à la sécurité, à l’économie et à la structure sociale de tous les Etats participants. Le Conseil ministériel apporte son appui au renforcement des efforts et à l’intensification de la coopération internationale pour relever ces défis et invite instamment les Etats participants qui ne l’ont pas encore fait à devenir parties à la Convention des Nations Unies contre la criminalité transnationale organisée et aux protocoles additionnels à la Convention.

Porto 2002 (Déclaration sur la traite des êtres humains) Nous engageons tous les Etats participants à renforcer la coopération internationale pour lutter contre la criminalité transnationale organisée, notamment les actes crimi- nels, tels que le trafic de drogue et d’armes, ainsi que le trafic illicite de migrants. Cette coopération devrait englober des organismes internationaux de police, tels qu’Europol et Interpol, ainsi que l’Initiative de coopération en Europe du Sud‑Est (…).

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Maastricht 2003 (Stratégie de l’OSCE visant à faire face aux menaces pour la sécurité et la stabilité au XXIe siècle) 31. L’OSCE intensifiera ses activités visant à lutter contre la criminalité organisée. Des réunions régulières d’experts de la police des Etats participants de l’OSCE et de repré- sentants d’autres organisations régionales et internationales spécialisées constitueraient une contribution importante à cet égard. (…) Le document de l’OSCE sur les ALPC reste un instrument clé de lutte contre le trafic et la prolifération d’ALPC sous tous leurs aspects. Sa mise en œuvre sera encore renforcée. L’OSCE continuera à contribuer aux efforts déjà en cours avec l’ONUDC sur la question du trafic illicite de stupéfiants. Il y a lieu d’adopter une approche internationale efficace et globale sur la question.

32. L’Unité pour les questions stratégiques de police a été mise en place pour améliorer la capacité des Etats participants à faire face aux menaces découlant des activités cri- minelles et aider les Etats participants à instaurer la primauté du droit. L’objectif pour- suivi est d’accroître les compétences de la police, notamment le respect des droits de l’homme et des libertés fondamentales. L’OSCE renforcera, à la demande des Etats par- ticipants, l’accent qu’elle met sur l’assistance aux autorités, notamment à l’échelon local pour lutter contre la criminalité et les réseaux criminels, et elle identifiera et renforcera les compétences de base nécessaires à l’accomplissement des activités de la police telles que les activités de formation et de renforcement des capacités.

33. L’OSCE intensifiera ses efforts pour combattre notamment le trafic des migrants et les migrations irrégulières.

34. Une approche multidisciplinaire et globale s’impose afin de prévenir et de combat- tre de manière efficace la corruption sous toutes ses formes. L’OSCE, en étroite coordi- nation avec l’ONUDC et d’autres organisations et institutions financières internationa- les compétentes, contribuera à réduire la corruption dans toute la région de l’OSCE.

35. Les menaces que constituent le terrorisme et la criminalité organisée sont souvent liées et des approches synergiques visant à y faire face seront examinées plus avant. Le mouvement transfrontière des personnes, des ressources et des armes ainsi que le tra- fic aux fins de financer et de fournir un appui logistique jouent un rôle croissant dans les activités terroristes. L’OSCE s’engage à affronter ces problèmes et à renforcer ses capaci- tés en vue de promouvoir des frontières ouvertes et sûres, notamment, en élaborant un concept de gestion et de sécurité des frontières afin de renforcer encore les capacités et d’intensifier une coopération interétatique mutuellement bénéfique.

6.4 Prévention du terrorisme

6.4.1 Condamnation du terrorisme et engagement à le combattre Madrid 1983 (Questions relatives à la sécurité en Europe : Principes) (…)

254 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Prévention du terrorisme

Les Etats participants condamnent le terrorisme, y compris le terrorisme dans les rela- tions internationales, qui met en danger ou fait périr des innocents ou porte autrement atteinte aux droits de l’homme et aux libertés fondamentales et ils proclament qu’il faut prendre de fermes mesures pour le combattre. Ils se déclarent résolus à prendre des mesures efficaces pour la prévention et l’élimination des actes de terrorisme, tant sur le plan national que par voie de coopération internationale, y compris sous forme d’ac- cords bilatéraux et multilatéraux appropriés, et à étendre et renforcer en conséquence leur coopération mutuelle pour combattre lesdits actes. Ils conviennent d’agir ainsi conformément à la Charte des Nations Unies, à la Déclaration des Nations Unies rela- tive aux principes du droit international touchant les relations amicales et la coopéra- tion entre les Etats et à l’Acte final de Helsinki.

(…)

Les Etats participants confirment qu’ils s’abstiendront d’aider directement ou indirec- tement les activités terroristes ou les activités subversives ou autres visant au renverse- ment violent du régime d’un autre Etat participant. En conséquence, ils s’abstiendront notamment de financer, d’encourager, de fomenter ou de tolérer l’une quelconque de ces activités.

Vienne 1989 (Questions relatives à la sécurité en Europe : Principes) (8) Les Etats participants condamnent sans réserve et jugent criminels, quels qu’en soient le lieu et les auteurs, tous les actes, méthodes et pratiques terroristes, y compris ceux qui menacent les relations amicales et la sécurité des Etats, et ils conviennent que le terrorisme ne peut être justifié en aucune circonstance.

(9) Ils se déclarent déterminés à œuvrer pour l’élimination du terrorisme tant bilatéra- lement que par la coopération multilatérale, en particulier dans des instances interna- tionales telles que l’Organisation des Nations Unies, l’Organisation de l’aviation civile internationale et l’Organisation maritime internationale, et conformément aux disposi- tions pertinentes de l’Acte final et du Document de clôture de Madrid.

(10) Convaincus de la nécessité de conjuguer des mesures prises au niveau national et une coopéra­tion internationale renforcée, les Etats participants expriment leur inten- tion :

(10.1) — d’appliquer une politique de fermeté face aux exigences des terroristes ;

(10.2) — de renforcer et développer leur coopération bilatérale et multilatérale pour pré- venir et combattre le terrorisme, ainsi que d’améliorer l’efficacité de la coopération exis- tant au niveau bilatéral ou dans le cadre de groupes d’Etats, y compris, s’il y a lieu, par l’échange d’informations ;

(…)

(10.4) — de prendre des mesures efficaces pour prévenir et combattre les actes de ter- rorisme visant des représentants diplomatiques ou consulaires et pour s’opposer à ceux

Les engagements de la dimension humaine de l’OSCE 255 Engagements relatifs à des menaces précises pesant sur la sécurité des personnes Pa rt i e II

qui constituent une violation des Conventions de Vienne sur les relations diplomati- ques et consulaires, en par­ticulier des dispositions relatives aux privilèges et immunités diplomatiques et consulaires qu’elles contiennent ;

(…)

(10.6) — d’envisager de devenir parties, s’ils ne l’ont pas encore fait, aux conventions internationales pertinentes visant à combattre les actes de terrorisme ;

(10.7) — de continuer à œuvrer dans les organismes internationaux appropriés en vue d’améliorer et d’élargir les mesures antiterroristes et de faire en sorte que les accords pertinents soient acceptés et appliqués par un nombre d’Etats aussi grand que possible.

Helsinki 1992 (Déclaration du sommet) 26. (…) Nous encouragerons l’échange d’informations relatives aux activités terroristes. Nous chercherons s’il y a lieu de nouvelles formes concrètes de coopération. Nous pren- drons en outre les mesures nécessaires à l’échelon national pour remplir nos obligations internationales dans ce domaine.

Budapest 1994 (Décisions : IV. Code de conduite relatif aux aspects politico-militaires de la sécurité) 6. Les Etats participants ne soutiendront d’aucune manière des actes terroristes et pren- dront des mesures appropriées pour prévenir et combattre le terrorisme sous toutes ses formes. Ils coopéreront pleinement pour combattre la menace d’activités terroristes par l’application des instruments internationaux et des engagements auxquels ils sous- crivent à cet égard. (…)

Istanbul 1999 (Charte de sécurité européenne : I. Nos défis communs) 4. Le terrorisme international, l’extrémisme violent, la criminalité organisée et le tra- fic de drogues représentent des défis toujours plus grands pour la sécurité. Quels qu’en soient les motifs, le terrorisme, sous toutes ses formes et manifestations, est inaccepta- ble. (…) L’accumulation excessive et déstabilisatrice et la dissémination incontrôlée des armes de petit calibre et des armes légères constituent une menace pour la paix et la sécurité. Nous sommes résolus à mieux nous protéger contre ces nouveaux risques et défis ; des institutions démocratiques fortes et l’état de droit sont le fondement de cette protection. Nous sommes aussi déterminés à coopérer plus activement et plus étroite- ment pour relever ces défis.

Bucarest 2001 (Déclaration ministérielle) 2. Nous condamnons résolument tous les actes de terrorisme. Le terrorisme, quelle que soit sa motivation ou son origine, n’a aucune justification. Aucune cause ne peut justi- fier que des personnes innocentes soient intentionnellement prises pour cible. Dans la lutte contre le terrorisme, il n’y a pas de neutralité.

256 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Prévention du terrorisme

3. (…) Nous affirmons de nouveau que la lutte contre le terrorisme n’est pas une guerre contre des religions ou des peuples. (…)

Bucarest 2001 (Décision No 1 : Lutte contre le terrorisme) Les 55 Etats participants de l’OSCE sont unis contre le terrorisme, fléau de notre épo- que.

Les Etats participants de l’OSCE condamnent résolument les actes barbares de terro- risme qui ont été perpétrés contre les Etats‑Unis le 11 septembre 2001. Ces actes consti- tuent une attaque contre l’ensemble de la communauté internationale et contre des per- sonnes de toutes confessions et de toutes cultures. Ces actes odieux de même que les autres actions terroristes sous toutes leurs formes et manifestations, quels qu’en soient la date, le lieu ou l’auteur, constituent une menace pour la paix, la sécurité et la stabilité régionales et internationales. Il ne doit pas y avoir de refuge pour ceux qui commettent ou financent de tels actes criminels (…)

Les Etats participants de l’OSCE ne céderont pas aux menaces terroristes mais les com- battront par tous les moyens conformément à leurs engagements internationaux, ce qui leur demandera un effort prolongé et soutenu, mais ils tirent leur force de leur vaste coalition allant de Vancouver à Vladivostok. (…) Ils rejettent fermement toute identifi- cation du terrorisme avec une nationalité ou une religion quelconque (…)

Les Etats participants de l’OSCE s’engagent à renforcer et à développer la coopéra- tion, aux niveaux bilatéral et multilatéral, au sein de l’Organisation de même qu’avec l’Organisation des Nations Unies et d’autres organisations régionales et internationa- les en vue de combattre le terrorisme sous toutes ses formes et manifestations, quels qu’en soient le lieu et l’auteur. En tant qu’accord régional au sens du Chapitre VIII de la Charte des Nations Unies, l’OSCE est déterminée à contribuer à la réalisation d’obliga- tions internationales telles qu’elles sont énoncées, entre autres, dans la résolution 1373 (2001) du Conseil de sécurité des Nations Unies, et agira en conformité avec les objec- tifs et principes de la Charte des Nations Unies. Les Etats participants de l’OSCE s’enga- gent à devenir dès que possible parties aux 12 conventions et protocoles internationaux des Nations Unies relatifs au terrorisme. Ils demandent de mener promptement à terme les négociations relatives à une convention globale des Nations Unies sur le terrorisme international.

(…)

(…) le Conseil ministériel de l’OSCE adopte « Le Plan d’action de Bucarest pour lutter contre le terrorisme », joint à la présente décision.

Bucarest 2001 (Annexe à la Décision 1 sur la lutte contre le terrorisme ; Plan d’action de Bucarest pour lutter contre le terrorisme) I. Objectif du Plan d’action

Les engagements de la dimension humaine de l’OSCE 257 Engagements relatifs à des menaces précises pesant sur la sécurité des personnes Pa rt i e II

1. (…) Les Etats participants de l’OSCE s’engagent à mettre leur volonté politique, leurs ressources et leurs moyens pratiques au service de l’exécution de leurs obligations en vertu des conventions relatives au terrorisme international existantes (…).

II. Obligations juridiques et engagements politiques internationaux 4. (…) Il faut chercher et veiller à ce que les Etats participants soient parties, de la manière la plus vaste et la plus complète possible, aux instruments et engagements exis- tants pour lutter contre le terrorisme, et les mettent en œuvre.

5. Etats participants : Ils s’engagent à s’efforcer de devenir, si possible d’ici le 31 décem- bre 2002, parties aux 12 conventions et protocoles des Nations Unies relatifs au terro- risme, tout en considérant le rôle important que les parlementaires peuvent jouer dans la ratification et autres processus législatifs anti‑terroristes (…). Ils participeront acti- vement, dans le cadre de l’ONU, aux négociations en cours sur une convention globale contre le terrorisme international et sur une convention internationale pour la répres- sion des actes de terrorisme nucléaire, en vue de les mener à bien rapidement.

(…)

7. Etats participants : Ils examineront comment l’OSCE peut s’inspirer des meilleures pratiques et des enseignements tirés d’autres groupements, organisations, institutions et instances pertinents dans des domaines tels que la coopération policière et judiciaire, la prévention et la répression du financement du terrorisme, le refus d’autres moyens de soutien, les contrôles aux frontières, y compris la sécurité des visas et des documents, et l’accès des services de répression à l’information.

8. Les Etats participants recourront également au Forum pour la coopération en matière de sécurité pour renforcer leurs efforts de lutte contre le terrorisme en appliquant plei- nement et en temps voulu toutes les mesures pertinentes agréées par l’OSCE. A cette fin, ils renforceront la mise en œuvre des engagements et accords politico‑militaires existants, en particulier du Code de conduite relatif aux aspects politico-militaires de la sécurité et du Document de l’OSCE sur les armes légères et de petit calibre. (…)

III. Action préventive contre le terrorisme dans l’espace de l’OSCE (…)

11. Promotion des droits de l’homme, de la tolérance et du multiculturalisme : Etats participants/Conseil permanent/BIDDH/Haut Commissaire pour les minorités natio- nales (HCMN)/Représentant de l’OSCE pour la liberté des médias : Ils favoriseront et renforceront la tolérance, la coexistence et les relations harmonieuses entre les grou- pes ethniques, religieux, linguistiques et autres, de même qu’une coopération construc- tive à cet égard entre Etats participants. Ils assureront l’alerte précoce et donneront des réponses appropriées dans les cas de violence, d’intolérance, d’extrémisme et de dis- crimination contre ces groupes et, en même temps, œuvreront en faveur du respect de l’état de droit, des valeurs démocratiques et des libertés individuelles. Ils feront en sorte que les personnes appartenant à des minorités nationales aient le droit d’exprimer, de

258 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Prévention du terrorisme

préserver et de développer en toute liberté leur identité ethnique, culturelle, linguisti- que ou religieuse.

(…)

13. Considération de facteurs socio-économiques négatifs : Etats participants/Secréta- riat : Ils s’efforceront de déceler les problèmes économiques et environnementaux qui compromettent la sécurité, comme par exemple les problèmes suivants – mauvaise administration des affaires publiques, corruption, activités économiques illicites, chô- mage élevé, pauvreté généralisée et grandes inégalités, facteurs démographiques et uti- lisation non viable des ressources naturelles ; et ils chercheront à pallier à ces facteurs avec l’aide, s’ils le demandent, du Bureau du Coordonnateur des activités économiques et environnementales de l’OSCE agissant, entre autres, comme élément moteur d’action et de coopération.

14. Prévention de conflits violents et promotion d’un règlement pacifique des diffé- rends : En tirant parti de toutes ses capacités, l’OSCE poursuivra et intensifiera ses tra- vaux dans le domaine de l’alerte précoce et des réponses appropriées, de la prévention des conflits, de la gestion des crises et du relèvement après un conflit ; elle renforcera son aptitude à régler des conflits, intensifiera ses efforts pour apporter des solutions durables à des conflits non résolus, notamment grâce à la promotion de l’état de droit et de la prévention de la criminalité dans les zones de conflit par une coopération accrue avec l’Organisation des Nations Unies, l’Union européenne et d’autres organisations internationales, et développera plus avant sa capacité de déploiement rapide (REACT) dans les situations de crise.

15. Règlement de la question des déplacements prolongés : Etats participants/BIDDH/ HCMN/Représentant pour la liberté des médias : Ils étudieront les moyens de rendre l’OSCE mieux à même de contribuer à des solutions durables, en soutenant d’autres organisations concernées, principalement le Haut Commissariat des Nations Unies pour les réfugiés, et en coopérant étroitement avec ces organisations. Ils suivront de près les situations de déplacement prolongé.

16. Renforcement de la législation anti‑terroriste nationale : Etats participants : Ils s’en- gageront à s’acquitter de toutes les obligations qu’ils ont contractés au titre des conven- tions et protocoles relatifs au terrorisme ainsi que de la Convention des Nations Unies contre la criminalité transnationale organisée et des protocoles additionnels à la Convention, en partageant les informations et les méthodes dans cette optique et en examinant les moyens de coopérer dans l’application de ces conventions et protocoles dans le cadre de réunions bilatérales, sous‑régionales ou à l’échelle de l’OSCE.

(…)

24. Répression du financement du terrorisme. Etats participants : Ils prendront, dans le cadre de la Convention internationale pour la répression du financement du terrorisme adoptée par l’ONU et de la résolution 1373 (2001) du Conseil de sécurité des Nations Unies, des mesures visant à prévenir et à réprimer le financement du terrorisme, éri-

Les engagements de la dimension humaine de l’OSCE 259 Engagements relatifs à des menaces précises pesant sur la sécurité des personnes Pa rt i e II

geront en infraction la fourniture ou la collecte délibérée de fonds à des fins terroristes et gèleront les avoirs des terroristes, en gardant également à l’esprit la résolution 1267 (1999) du Conseil de sécurité des Nations Unies. Ils apporteront, conformément à leur législation nationale et à leurs obligations au titre du droit international, une prompte réponse aux demandes de renseignements d’un autre Etat participant ou d’une organi- sation internationale compétente.

25. Etats participants/Secrétariat : (…) Ils examineront la manière dont l’OSCE pour- rait contribuer, dans le cadre de son action en faveur de la transparence et de la lutte contre la corruption, à l’effort international plus vaste de lutte contre le terrorisme. Ils envisageront de jouer un rôle catalyseur en mettant au point des projets ciblés de for- mation du personnel des institutions financières nationales dans des domaines intéres- sant le combat contre le terrorisme, dont notamment la surveillance des flux financiers et la prévention du blanchiment d’argent. Les Etats participants apporteront une contri- bution constructive aux prochaines négociations, au sein de l’ONU, sur un instrument anti‑corruption global, en vue d’un aboutissement prompt et satisfaisant de ces négo- ciations.

26. Prévention des mouvements de terroristes : Etats participants : Ils préviendront les mouvements de terroristes ou de groupes de terroristes en instituant un contrôle effi- cace aux frontières ainsi que des contrôles lors de la délivrance de papiers d’identité et de documents de voyage, et en prenant aussi des mesures pour assurer la sécurité des papiers d’identité et des documents de voyage et pour prévenir la contrefaçon, la falsifi- cation ou l’usage frauduleux de ces documents. Ils appliqueront ces mesures de contrôle en respectant pleinement leurs obligations au titre des normes du droit international concernant les réfugiés et les droits de l’homme. Ils veilleront, en recourant de manière appropriée aux dérogations prévues dans la Convention relative au statut des réfugiés de 1951 et dans le Protocole y relatif de 1967, que l’asile ne soit pas accordé à des person- nes qui ont participé à des actes terroristes. Ils assureront en temps utile la détention et la poursuite ou l’extradition de personnes accusées d’actes terroristes, conformément à leurs obligations au titre du droit international et national.

IV. Action en vertu de la Plate-forme pour la sécurité coopérative – coopération avec d’autres organisations (…)

28. Etats participants/Secrétariat : Ils renforceront la coopération et l’échange d’infor- mations, par les voies officielles ou officieuses, avec les autres groupements, organisa- tions et institutions pertinents engagés dans la lutte contre le terrorisme. Ils renforce- ront la coopération avec l’Union européenne en matière d’analyse et d’alerte précoce et accentueront la synergie avec le Pacte de stabilité pour l’Europe du Sud‑Est et l’Initiative centre‑européenne dans les domaines intéressant la lutte contre le terrorisme. Ils favo- riseront dans l’espace de l’OSCE le dialogue sur les questions intéressant les nouvelles menaces et les nouveaux défis. Ils élargiront le dialogue avec des partenaires en dehors de l’espace de l’OSCE, comme les partenaires méditerranéens pour la coopération et les

260 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Prévention du terrorisme

partenaires pour la coopération en Asie, l’Organisation de coopération de Shanghai, la Conférence sur l’interaction et les mesures de confiance en Asie, l’Organisation de la conférence islamique, la Ligue des Etats arabes, l’Union africaine et les Etats riverains de l’espace de l’OSCE pour confronter les meilleures pratiques et les enseignements dégagés de l’action anti‑terroriste en vue d’une application dans l’espace de l’OSCE.

(…)

Bucarest 2001 (Décisions : Décision No 9 : Activités relatives à la police) Le Conseil ministériel,

(…)

Affirmant qu’une police efficace est indispensable pour le respect de l’état de droit et la défense des institutions démocratiques ;

(…)

3. Décide, pour faire face aux nouveaux défis pour la sécurité, de renforcer et de pro- mouvoir la coopération entre Etats participants, notamment comme suit :

• à la demande des Etats participants et avec leur accord (…) en organisant et en coor- donnant la formation de la police, notamment au niveau sous‑régional, afin :

• d’améliorer les capacités opérationnelles et tactiques des services de police ;

• d’accroître les qualifications de la police, notamment en ce qui concerne le respect des droits de l’homme et des libertés fondamentales, et, le cas échéant, les aspects pénaux de la migration illégale ; et,

• de renforcer les capacités de la police de proximité et la lutte anti‑drogue, anti‑cor- ruption et anti‑terrorisme ; et,

• à la demande des Etats participants et avec leur accord :

• de fournir des conseils ou d’organiser la fourniture de conseils d’experts sur les conditions requises pour avoir un service de police efficace (évaluation des besoins) et les moyens d’y satisfaire (…) ; et,

• d’encourager, le cas échéant, l’échange bilatéral ou multilatéral d’informations entre les Etats participants sur leur expérience et les méthodes de police les mieux adap- tées pour relever ces nouveaux défis en matière de sécurité.

(…)

5. Dans le cadre des initiatives susmentionnées, les Etats participants s’engagent :

• à renforcer mutuellement la coopération sur les questions relatives à la police afin de faire face aux nouveaux risques et défis pour leur sécurité, aux niveaux bilatéral et

Les engagements de la dimension humaine de l’OSCE 261 Engagements relatifs à des menaces précises pesant sur la sécurité des personnes Pa rt i e II

multilatéral et, le cas échéant, en intensifiant les contacts entre organismes compé- tents ;

• à partager le savoir-faire et l’expérience de l’OSCE concernant les activités relatives à la police avec d’autres organisations internationales compétentes dont ils sont mem- bres pour accroître l’efficacité de l’action internationale face à ces nouveaux risques et défis pour la sécurité.

Porto 2002 (Charte de l’OSCE sur la prévention et la lutte contre le terrorisme) Les Etats participants de l’OSCE, résolus à lutter en commun contre le terrorisme,

(…)

2. (…) réaffirment que l’action contre le terrorisme ne vise aucune religion, aucune nation ni aucun peuple ;

(…)

4. Déclarent que les actes, méthodes et pratiques du terrorisme, ainsi que le fait de por- ter assistance à, de consentir à, de financer et d’organiser des actes de terrorisme ou d’inciter à de tels actes en connaissance de cause, sont contraires aux buts et principes de l’Organisation des Nations Unies et de l’OSCE ;

5. Considèrent qu’il importe au plus haut point de compléter la mise en œuvre des enga- gements de l’OSCE relatifs au terrorisme en réaffirmant les principes fondamentaux et intemporels qui sous-tendent et continueront de sous-tendre à l’avenir l’action de l’OSCE, et auxquels les Etats participants souscrivent pleinement ;

(…)

8. Réaffirment que chaque Etat a l’obligation de s’abstenir (…) d’organiser, d’encourager, d’appuyer activement ou passivement des actes de terrorisme sur le territoire d’un autre Etat (…).

(…)

11. Reconnaissent que les conventions et protocoles pertinents de l’Organisation des Nations Unies, ainsi que les résolutions du Conseil de sécurité des Nations Unies, en particulier sa résolution 1373 (2001), constituent le principal cadre juridique internatio- nal pour la lutte contre le terrorisme ;

12. Reconnaissent l’importance de l’action menée par le Comité contre‑terrorisme créé dans le cadre du Conseil de sécurité et réaffirment l’obligation et la volonté des Etats participants et de l’OSCE de coopérer avec ce Comité ;

13. Rappellent le rôle de l’OSCE en tant qu’Accord régional au sens du Chapitre VIII de la Charte des Nations Unies, et les obligations qui lui incombent dans ce contexte de contribuer à la lutte mondiale contre le terrorisme ;

262 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Prévention du terrorisme

(…)

15. Prennent note avec satisfaction de la Déclaration et du Programme d’action adop- tés à la Conférence internationale sur le renforcement de la sécurité et de la stabilité en Asie centrale : renforcement des efforts d’ensemble pour lutter contre le terrorisme, tenue à Bichkek les 13 et 14 décembre 2001 ;

(…)

17. Soulignent que la prévention et la lutte contre le terrorisme doivent se fonder sur un concept de sécurité commune et globale et sur une stratégie durable, et s’engagent à recourir aux trois dimensions et à tous les organes et institutions de l’OSCE pour aider les Etats participants, à leur demande, à prévenir et à combattre le terrorisme sous tou- tes ses formes ;

18. S’engagent à s’acquitter de leur obligation, conformément aux conventions et aux protocoles des Nations Unies, aux résolutions du Conseil de sécurité, ainsi qu’à d’autres engagements internationaux, de veiller à ce que les actes terroristes et les activités à l’ap- pui de tels actes, notamment le financement du terrorisme, soient érigés en crimes gra- ves dans la législation nationale ;

19. Collaboreront afin de prévenir et de réprimer les actes terroristes, d’enquêter sur de tels actes et d’en poursuivre les auteurs, notamment en coopérant davantage et en appli- quant intégralement les conventions et protocoles internationaux pertinents relatifs au terrorisme ;

20. Sont convaincus de la nécessité de s’attaquer aux conditions susceptibles de favoriser le terrorisme, notamment en respectant pleinement la démocratie et l’état de droit, en permettant à tous les citoyens de participer pleinement à la vie politique, en prévenant la discrimination et en encourageant le dialogue interculturel et inter‑religieux dans leurs sociétés, en impliquant la société civile dans la recherche d’un règlement politique des conflits, en œuvrant en faveur des droits de l’homme et de la tolérance et en luttant contre la pauvreté ;

21. Prennent note du rôle positif que peuvent jouer les médias dans la promotion de la tolérance et de la compréhension entre religions, croyances, cultures et peuples, ainsi que pour sensibiliser davantage à la menace du terrorisme ;

22. S’engagent à combattre le discours de haine et à prendre les mesures nécessaires pour prévenir l’utilisation des médias et des technologies de l’information à des fins ter- roristes, en veillant à ce que ces mesures soient conformes à la législation nationale, au droit international et aux engagements de l’OSCE ;

23. Empêcheront les mouvements de terroristes ou de groupes terroristes en instituant des contrôles efficaces aux frontières, ainsi que des contrôles lors de la délivrance de documents d’identité et de documents de voyage ;

(…)

Les engagements de la dimension humaine de l’OSCE 263 Engagements relatifs à des menaces précises pesant sur la sécurité des personnes Pa rt i e II

25. Réaffirment leur engagement de s’acquitter de leurs obligations internationales, tel- les quelles figurent dans les résolutions 1373 (2001) et 1390 (2002) du Conseil de sécu- rité des Nations Unies, et notamment de geler les avoirs de ceux qui sont désignés par le Comité créé en application de la résolution 1267 (1999) du Conseil de sécurité des Nations Unies ;

26. Notent avec préoccupation les liens existant entre le terrorisme et la criminalité transnationale organisée, le blanchiment d’argent, la traite des êtres humains et le trafic de drogue et d’armes, et soulignent, à cet égard, qu’il convient d’améliorer la coordina- tion et d’élaborer des stratégies de coopération à tous les niveaux afin de renforcer leur réaction face à ces menaces graves et à ces défis pour la sécurité et la stabilité ;

(…)

Porto 2002 (Décisions : Décision No 1 sur la mise en œuvre des engagements et activi- tés de l’OSCE liés a la lutte contre le terrorisme) Le Conseil ministériel,

(…)

S’engage à mettre tout en œuvre pour conclure les négociations en cours dans le cadre des Nations Unies sur de nouveaux instruments universels dans ce domaine et confirme qu’il est prêt à examiner, en coopération avec le Comité contre-terrorisme créé par le Conseil de sécurité des Nations Unies, les demandes d’assistance technique et de ren- forcement des capacités en vue de progresser dans la ratification et la mise en œuvre des instruments des Nations Unies et d’autres instruments pertinents relatifs au terro- risme ;

(…)

Rappelle la recommandation dans laquelle le Représentant personnel du Président en exercice pour la prévention et la lutte contre le terrorisme invite l’OSCE à mener des activités relatives notamment à la police, à la sécurité des frontières, à la lutte contre la traite des êtres humains et à la répression du financement du terrorisme (…) ;

Décide que les Etats participants, organes et institutions de l’OSCE renforceront leurs efforts et leur engagement collectif visant à combattre le terrorisme et les conditions susceptibles de le favoriser en exploitant les atouts et les avantages comparatifs de l’Or- ganisation : son approche globale de la sécurité, l’expérience acquise dans le domaine de l’alerte précoce, de la prévention des conflits, de la gestion des crises et du relèvement après un conflit, son vaste répertoire de mesures de confiance et de sécurité éprouvées et son savoir‑faire en matière de renforcement des capacités.

264 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Prévention du terrorisme

Maastricht 2003 (Stratégie de l’OSCE visant à faire face aux menaces pour la sécurité et la stabilité au XXIe siècle) Menaces pour la sécurité et la stabilité au XXIe siècle (…)

10. Le terrorisme est l’une des causes les plus importantes d’instabilité dans l’environ- nement actuel de sécurité. Le terrorisme cherche à saper les valeurs mêmes qui unis- sent les Etats participants dans l’espace de l’OSCE. Il restera l’un des principaux défis à la paix et à la stabilité, ainsi qu’au pouvoir des Etats, notamment du fait de sa capacité à utiliser des méthodes asymétriques pour contourner les systèmes traditionnels de sécu- rité et de défense. Il n’existe aucune justification quelle qu’elle soit pour le terrorisme. Cela étant, le terrorisme exige une approche globale pour s’attaquer à ses manifesta- tions, ainsi qu’au contexte social, économique et politique dans lequel il se produit.

(…)

Combattre le terrorisme et les menaces découlant d’autres activités criminelles Terrorisme (…)

29. (…) Une attention particulière sera accordée au renforcement des capacités et à d’autres formes d’assistance en matière de lutte antiterroriste. (…) Ces mesures por- tent sur l’interdiction de donner asile aux terroristes et sur l’élimination des conditions offrant aux terroristes la possibilité de recruter et d’obtenir des appuis. Elles visent aussi à empêcher les terroristes d’accroître leurs capacités, notamment en faisant en sorte qu’ils n’aient pas accès aux ALPC, aux autres armes conventionnelles ainsi qu’aux armes de destruction massive et technologies connexes. Une interaction étroite avec d’autres organisations et organismes internationaux compétents, en particulier le Comité du Conseil de sécurité des Nations Unies chargé de la lutte contre le terrorisme (CTC de l’ONU) et l’Office des Nations Unies contre la drogue et le crime (ONUDC) est sollici- tée par le biais de réunions communes, de contacts à tous les niveaux et de programmes et projets spécifiques.

30. L’OSCE a également décidé d’établir un réseau contre‑terrorisme afin de promou- voir le renforcement de la coordination des mesures antiterroristes et l’échange d’in- formations entre les Etats participants de l’OSCE ainsi que d’appuyer et de compléter les activités du CTC de l’ONU par la mise en œuvre de la résolution 1373 du Conseil de sécurité.

Menaces découlant d’autres activités criminelles (…)

35. Les menaces que constituent le terrorisme et la criminalité organisée sont souvent liées et des approches synergiques visant à y faire face seront examinées plus avant. Le

Les engagements de la dimension humaine de l’OSCE 265 Engagements relatifs à des menaces précises pesant sur la sécurité des personnes Pa rt i e II

mouvement transfrontière des personnes, des ressources et des armes ainsi que le tra- fic aux fins de financer et de fournir un appui logistique jouent un rôle croissant dans les activités terroristes. L’OSCE s’engage à affronter ces problèmes et à renforcer ses capaci- tés en vue de promouvoir des frontières ouvertes et sûres, notamment, en élaborant un concept de gestion et de sécurité des frontières afin de renforcer encore les capacités et d’intensifier une coopération interétatique mutuellement bénéfique.

Sofia 2004 (Déclaration ministérielle : prévenir et combattre le terrorisme) 1. Nous, membres du Conseil ministériel de l’OSCE (…) condamnons résolument et sans équivoque les actes terroristes, en particulier ceux commis en 2004 en Espagne, en Ouzbékistan, en Turquie et en Russie (…). Nous pleurons la perte de centaines de vies humaines et exprimons notre profonde solidarité avec les victimes d’actes de terrorisme et leur famille. Ces actes ont mis clairement au jour la nature inhumaine du terrorisme. Nous exprimons notre solidarité avec les Etats qui ne participent pas à notre Organisa- tion et qui ont également été la cible de terroristes.

Réaffirmant que le terrorisme constitue l’une des plus graves menaces contre la paix et la sécurité et considérant que les actes de terrorisme compromettent gravement la jouis- sance des droits de l’homme, nous réitérons notre engagement à protéger la jouissance des droits de l’homme et des libertés fondamentales, tout particulièrement le droit à la vie, des personnes relevant de notre juridiction contre les actes terroristes. (…)

2. Nous soulignons le rôle de chef de file de l’Organisation des Nations Unies dans la lutte globale contre le terrorisme.

Nous réaffirmons les obligations et les engagements adoptés par nos Etats dans le cadre des Nations Unies en matière de lutte contre le terrorisme, notamment les résolu- tions 1267 (1999), 1373 (2001), 1456 (2003), 1535 (2004), 1540 (2004) et 1566 (2004) du Conseil de sécurité des Nations Unies, ainsi que la résolution 58/187 de l’Assemblée générale des Nations Unies, et nous appuyons la résolution 2004/87 de la Commission des droits de l’homme des Nations Unies.

(…)

Nous soulignons notre détermination à appuyer les efforts importants du Comité contre le terrorisme du Conseil de sécurité des Nations Unies et de sa Direction exécutive. (…)

3. Nous (…) appuyons les activités de l’Unité d’action contre le terrorisme du Secréta- riat de l’OSCE.

Nous sommes convaincus que l’ensemble de décisions pratiques que nous adoptons et saluons aujourd’hui ainsi que la poursuite de leur mise en œuvre renforceront le niveau  Décision No 617 du Conseil permanent sur les mesures supplémentaires visant à réprimer le financement du terrorisme (1er juillet 2004) Décision No 618 du Conseil permanent sur la solidarité avec les victimes du terrorisme (1er juillet 2004) Décision du Conseil ministériel sur la lutte contre l’utilisation d’Internet à des fins terroristes Décision du Conseil ministériel sur le renforcement de la sécurité des conteneurs Décision du Conseil ministériel sur la déclaration des passeports perdus/volés au dispositif de recherche automatisé/à la base de données sur les documents de voyage volés d’Interpol

266 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Prévention du terrorisme

de sécurité et de stabilité dans l’espace de l’OSCE. Ces décisions contribueront à la mise en œuvre de nos obligations au titre du droit international visant à prévenir et combat- tre le terrorisme.

4. (…) Nous réaffirmons que les efforts de l’OSCE visant à contrer les menaces terroris- tes devraient être pris dans toutes les dimensions de l’OSCE, à savoir la dimension sécu- ritaire, notamment le domaine politico‑militaire, la dimension économique et environ- nementale, ainsi que la dimension humaine. S’appuyant sur notre approche de sécu- rité commune, globale et indivisible, notre Organisation pourrait apporter de nouvelles contributions substantielles aux efforts mondiaux de lutte contre le terrorisme.

Nous sommes convaincus que le respect des droits de l’homme et des libertés fonda- mentales est un élément important pour assurer la paix et la stabilité et prévenir le ter- rorisme. Nous reconnaissons que la prévention efficace du terrorisme et la lutte contre ce dernier requièrent l’implication de la société civile dans nos pays.

(…) Nous coopérerons activement pour trouver les auteurs, organisateurs, sympathi- sants et commanditaires d’actes terroristes et les traduire en justice.

Nous continuerons également à développer l’interaction et le dialogue sur les questions concernant la prévention du terrorisme et la lutte contre ce dernier avec les partenaires méditerranéens et asiatiques pour la coopération.

Sofia 2004 (Décisions : Décision No 3/04 sur la lutte contre l’utilisation d’Internet à des fins terroristes) Le Conseil ministériel,

(…)

Préoccupé par l’ampleur de l’utilisation d’Internet par des organisations terroristes :

• Pour identifier et recruter des membres potentiels,

• Pour collecter et transférer des fonds,

• Pour organiser des actes terroristes,

• Pour inciter à commettre des actes terroristes, en particulier par l’utilisation de la pro- pagande,

Décide que les Etats participants échangeront des informations sur l’utilisation d’In- ternet à des fins terroristes et identifieront des stratégies possibles de lutte contre cette menace (…).

Les engagements de la dimension humaine de l’OSCE 267 Engagements relatifs à des menaces précises pesant sur la sécurité des personnes Pa rt i e II

6.4.2 Respect des droits de l’homme dans la lutte contre le terrorisme Madrid 1983 (Questions relatives à la sécurité en Europe : Principes) Les Etats participants (…) se déclarent résolus à prendre des mesures efficaces pour la prévention et l’élimination des actes de terrorisme (…). Ils conviennent d’agir ainsi conformément (…) à l’Acte final de Helsinki.

Copenhague 1990 (6) Les Etats participants (…) reconnaissent la responsabilité qui leur incombe de défen- dre et de protéger, conformément à leurs lois, à leurs obligations internationales en matière de droits de l’homme et à leurs engagements internationaux, l’ordre démocra- tique librement établi par la volonté du peuple contre les activités de personnes, grou- pes ou groupements ou organisations qui prennent part ou qui refusent de renoncer à des actes de terrorisme ou de violence visant à renverser cet ordre ou celui d’un autre Etat participant.

Bucarest 2001 (Déclaration ministérielle) 3. (…) Nous affirmons de nouveau que la lutte contre le terrorisme n’est pas une guerre contre des religions ou des peuples. Nous réaffirmons notre engagement à protéger les droits de l’homme et les libertés fondamentales.

4. Nous sommes résolus à mettre nos citoyens à l’abri des nouveaux défis pour la sécu- rité tout en protégeant l’état de droit, les libertés individuelles et le droit à l’égalité devant la justice, conformément à la loi. (…)

Bucarest 2001 (Décision 1 sur la lutte contre le terrorisme) (…) Les Etats participants de l’OSCE ne céderont pas aux menaces terroristes mais les combattront par tous les moyens conformément à leurs engagements internationaux (…). Ils défendront la liberté et protégeront leurs citoyens contre les actes de terrorisme, en respectant pleinement le droit international et les droits de l’homme. Ils rejettent fer- mement toute identification du terrorisme avec une nationalité ou une religion quelcon- que et confirment à nouveau les normes, principes et valeurs de l’OSCE.

Bucarest 2001 (Annexe à la Décision 1 sur la lutte contre le terrorisme ; Plan d’action de Bucarest pour lutter contre le terrorisme) 26. Prévention des mouvements de terroristes : Etats participants : Ils préviendront les mouvements de terroristes ou de groupes de terroristes en instituant un contrôle effi- cace aux frontières ainsi que des contrôles lors de la délivrance de papiers d’identité et de documents de voyage (…). Ils appliqueront ces mesures de contrôle en respectant pleinement leurs obligations au titre des normes du droit international concernant les réfugiés et les droits de l’homme.

Porto 2002 (Chartre de l’OSCE sur la prévention et la lutte contre le terrorisme) Les Etats participants de l’OSCE (…)

268 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Prévention du terrorisme

(…)

5. Considèrent qu’il importe au plus haut point de compléter la mise en œuvre des enga- gements de l’OSCE relatifs au terrorisme en réaffirmant les principes fondamentaux et intemporels qui sous-tendent et continueront de sous-tendre à l’avenir l’action de l’OSCE, et auxquels les Etats participants souscrivent pleinement ;

6. Réaffirment leur engagement de prendre les mesures nécessaires pour protéger les droits de l’homme et les libertés fondamentales, tout particulièrement le droit à la vie, des personnes relevant de leur juridiction à l’encontre d’actes terroristes ;

7. S’engagent à mettre en œuvre des mesures efficaces et fermes de lutte contre le ter- rorisme et à faire en sorte que toutes les mesures anti-terroristes et la coopération en la matière respectent la primauté du droit et soient conformes à la Charte des Nations Unies et aux dispositions pertinentes du droit international, aux normes internationales relatives aux droits de l’homme et, le cas échéant, au droit humanitaire international ;

(…)

Sofia 2004 (Déclaration ministérielle : prévenir et combattre le terrorisme) 1. (…) Nous soulignons à nouveau notre détermination à combattre le terrorisme sous toutes ses formes et dans toutes ses manifestations (…) et à mener cette lutte dans le respect de l’état de droit et conformément à nos obligations au titre du droit internatio- nal, en particulier aux instruments internationaux relatifs aux droits de l’homme et aux réfugiés ainsi qu’au droit humanitaire.

2. Nous soulignons le rôle de chef de file de l’Organisation des Nations Unies dans la lutte globale contre le terrorisme. (…) nous appuyons la résolution 2004/87 de la Com- mission des droits de l’homme des Nations Unies (…).

Sofia 2004 (Décisions : Décision No 3/04 sur la lutte contre l’utilisation d’Internet à des fins terroristes) Le Conseil ministériel,

(…)

Préoccupé par l’ampleur de l’utilisation d’Internet par des organisations terroristes :

(…)

Décide que les Etats participants échangeront des informations sur l’utilisation d’In- ternet à des fins terroristes et identifieront des stratégies possibles de lutte contre cette menace, tout en veillant à assurer le respect des obligations et normes internationales relatives aux droits de l’homme, y compris celles concernant les droits à la vie privée et à la liberté d’opinion et d’expression ;

Les engagements de la dimension humaine de l’OSCE 269 Engagements relatifs à des menaces précises pesant sur la sécurité des personnes Pa rt i e II

6.4.3 Prévention des activités terroristes sur le territoire des États participants Madrid 1983 (Questions relatives à la sécurité en Europe : Principes) Dans le cadre du combat contre les actes de terrorisme, ils prendront toutes les mesures appropriées pour empêcher que leur territoire ne soit utilisé pour préparer, organiser ou commanditer des activités terroristes, y compris celles qui sont dirigées contre d’autres Etats participants et leurs ressortissants. Cela concerne également des mesures visant à interdire sur leurs territoires les activités illicites de personnes, de groupes et d’organi- sations qui sont les instigateurs d’actes de terrorisme, les organisent ou s’y livrent.

Vienne 1989 (Questions relatives à la sécurité en Europe : Principes) (10) (…) les Etats participants expriment leur intention :

(…)

(10.3.) — d’empêcher sur leur territoire les activités illicites de personnes, groupes ou organisations qui fomentent, organisent ou perpètrent des actes de terrorisme ou sub- versifs, ou d’autres activités visant au renversement par la violence du gouvernement d’un autre Etat participant ;

Istanbul 1999 (Charte de sécurité européenne : I. Nos défis communs) 4. (…) Nous intensifierons nos efforts pour prévenir la préparation et le financement de tout acte de terrorisme sur nos territoires et nous refuserons tout sanctuaire aux terro- ristes. (…)

Bucarest 2001 (Annexe à la Décision 1 sur la lutte contre le terrorisme ; Plan d’action de Bucarest pour lutter contre le terrorisme) 24. Répression du financement du terrorisme. Etats participants : Ils prendront, dans le cadre de la Convention internationale pour la répression du financement du terrorisme adoptée par l’ONU et de la résolution 1373 (2001) du Conseil de sécurité des Nations Unies, des mesures visant à prévenir et à réprimer le financement du terrorisme, éri- geront en infraction la fourniture ou la collecte délibérée de fonds à des fins terroristes et gèleront les avoirs des terroristes, en gardant également à l’esprit la résolution 1267 (1999) du Conseil de sécurité des Nations Unies. Ils apporteront, conformément à leur législation nationale et à leurs obligations au titre du droit international, une prompte réponse aux demandes de renseignements d’un autre Etat participant ou d’une organi- sation internationale compétente.

25. Etats participants/Secrétariat : (…) Ils examineront la manière dont l’OSCE pour- rait contribuer, dans le cadre de son action en faveur de la transparence et de la lutte contre la corruption, à l’effort international plus vaste de lutte contre le terrorisme. Ils envisageront de jouer un rôle catalyseur en mettant au point des projets ciblés de for- mation du personnel des institutions financières nationales dans des domaines intéres- sant le combat contre le terrorisme, dont notamment la surveillance des flux financiers et la prévention du blanchiment d’argent. Les Etats participants apporteront une contri-

270 Les engagements de la dimension humaine de l’OSCE Pa rt i e II Prévention du terrorisme

bution constructive aux prochaines négociations, au sein de l’ONU, sur un instrument anti‑corruption global, en vue d’un aboutissement prompt et satisfaisant de ces négo- ciations.

26. Prévention des mouvements de terroristes : Etats participants : Ils préviendront les mouvements de terroristes ou de groupes de terroristes en instituant un contrôle effi- cace aux frontières ainsi que des contrôles lors de la délivrance de papiers d’identité et de documents de voyage, et en prenant aussi des mesures pour assurer la sécurité des papiers d’identité et des documents de voyage et pour prévenir la contrefaçon, la falsifi- cation ou l’usage frauduleux de ces documents. Ils appliqueront ces mesures de contrôle en respectant pleinement leurs obligations au titre des normes du droit international concernant les réfugiés et les droits de l’homme. Ils veilleront, en recourant de manière appropriée aux dérogations prévues dans la Convention relative au statut des réfugiés de 1951 et dans le Protocole y relatif de 1967, que l’asile ne soit pas accordé à des person- nes qui ont participé à des actes terroristes. Ils assureront en temps utile la détention et la poursuite ou l’extradition de personnes accusées d’actes terroristes, conformément à leurs obligations au titre du droit international et national.

Porto 2002 (Chartre de l’OSCE sur la prévention et la lutte contre le terrorisme) Les Etats participants de l’OSCE, résolus à lutter en commun contre le terrorisme,

(…)

8. Réaffirment que chaque Etat a l’obligation de s’abstenir d’abriter des terroristes, d’or- ganiser, d’encourager, d’appuyer activement ou passivement des actes de terrorisme sur le territoire d’un autre Etat, d’y aider, ou de les commanditer de quelque autre manière, ou de tolérer sur son territoire des activités organisées en vue de perpétrer de tels actes ;

(…)

24. Considèrent qu’ils se doivent de compléter la coopération internationale en prenant toutes les mesures nécessaires pour prévenir et réprimer sur leur territoire, par tous les moyens licites, le soutien, le financement et la préparation de tout acte de terrorisme, et d’ériger en crime la fourniture ou la collecte délibérée de fonds à des fins terroristes, dans le cadre de leurs obligations au titre de la Convention internationale des Nations Unies sur la répression du financement du terrorisme et des résolutions pertinentes du Conseil de sécurité ;

6.4.4 Extradition et poursuites judiciaires contre les personnes impliquées dans des actes de terrorisme Vienne 1989 (Questions relatives à la sécurité en Europe : Principes) (10) (…) les Etats participants expriment leur intention :

(…)

Les engagements de la dimension humaine de l’OSCE 271 Engagements relatifs à des menaces précises pesant sur la sécurité des personnes Pa rt i e II

(10.5) — d’assurer l’extradition ou la poursuite en justice de personnes impliquées dans des actes de terrorisme et de coopérer étroitement lorsqu’il y a conflit de compé- tence entre plusieurs Etats concernés, en agissant dans ces deux cas conformément aux accords internationaux pertinents ;

Budapest 1994 (Décisions : IV. Code de conduite relatif aux aspects politico-militaires de la sécurité) 6. Les Etats participants (…) prendront en particulier des mesures pour satisfaire à leurs obligations au titre des accords internationaux par lesquels ils sont tenus de poursuivre ou d’extrader les terroristes.

Bucarest 2001 (Annexe à la Décision 1 sur la lutte contre le terrorisme ; Plan d’action de Bucarest pour lutter contre le terrorisme) 19. Appui à l’application de la loi et lutte contre la criminalité organisée : Etats par- ticipants : (…) Ils se prêteront mutuellement la plus grande assistance en fournissant des informations lors des enquêtes criminelles ou des procédures d’extradition pénale relatives aux actes terroristes, conformément à leur droit national et à leurs obligations internationales.

Porto 2002 (Chartre de l’OSCE sur la prévention et la lutte contre le terrorisme) Les Etats participants de l’OSCE, résolus à lutter en commun contre le terrorisme,

(…)

10. Prendront les mesures appropriées afin de s’assurer que le droit d’asile ne soit pas octroyé à toute personne ayant organisé ou facilité la perpétration d’actes de terrorisme ou y ayant participé, conformément aux dispositions pertinentes de leur législation nationale et du droit international (…)

(…)

18. S’engagent à s’acquitter de leur obligation, conformément aux conventions et aux protocoles des Nations Unies, aux résolutions du Conseil de sécurité, ainsi qu’à d’autres engagements internationaux, de veiller à ce que les actes terroristes et les activités à l’ap- pui de tels actes, notamment le financement du terrorisme, soient érigés en crimes gra- ves dans la législation nationale ;

19. Collaboreront afin de prévenir et de réprimer les actes terroristes, d’enquêter sur de tels actes et d’en poursuivre les auteurs, notamment en coopérant davantage et en appli- quant intégralement les conventions et protocoles internationaux pertinents relatifs au terrorisme ;

(…)

272 Les engagements de la dimension humaine de l’OSCE 7. Engagements relatifs au droit humanitaire international

Helsinki 1992 (Décisions : VI. La dimension humaine) Les Etats participants

(47) Rappellent que le droit humanitaire international est fondé sur la dignité inhérente à la personne humaine ;

(48) Respecteront en toutes circonstances et feront respecter le droit humanitaire inter- national, y compris la protection de la population civile ;

(49) Rappellent que les auteurs de violations du droit humanitaire international sont tenus pour personnellement responsables ;

(50) Reconnaissent le rôle essentiel que joue le Comité international de la Croix-Rouge pour promouvoir l’application et l’élaboration du droit humanitaire international, y compris des Conventions de Genève et de leurs Protocoles applicables ;

(51) Réaffirment l’engagement qu’ils ont pris de soutenir sans réserve le Comité inter- national de la Croix-Rouge, ainsi que les sociétés de la Croix-Rouge et du Croissant- Rouge, et les organisations du système des Nations Unies, particulièrement en période de conflit armé, de respecter leurs emblèmes protecteurs, de prévenir l’utilisation abu- sive de ces emblèmes et, le cas échéant, de prendre toutes les mesures visant à assurer l’accès aux zones concernées ;

(52) S’engagent à remplir le devoir qui leur incombe d’enseigner les obligations décou- lant du droit humanitaire international et de diffuser les informations s’y rapportant.

Stockholm 1992 (Décisions : 2. La CSCE en tant que communauté de valeurs) (…)

Le problème de plus en plus grave des réfugiés et des personnes déplacées préoccupe au plus haut point tous les Etats participants, en particulier dans le contexte de conflits

Les engagements de la dimension humaine de l’OSCE 273 Engagements relatifs au droit humanitaire international Pa rt i e II

qui mettent en très grand danger la satisfaction des besoins fondamentaux de l’homme. Les ministres ont déploré la situation critique des populations civiles les plus touchées par de tels conflits et ont exhorté tous les Etats participants à participer à un effort concerté pour partager le fardeau commun. Tous les gouvernements sont responsables l’un envers l’autre de leur conduite à l’égard de leurs citoyens et de leurs voisins. Les auteurs de crimes et actes de guerre commis en violation du droit humanitaire interna- tional doivent être tenus pour personnellement responsables.

(…)

Rome 1993 (Décisions : X. Déclaration sur le nationalisme aggressif, le racisme, le chau- vinisme, la xénophobie et l’antisémitisme) 4. Les ministres ont concentré leur attention sur la nécessité de prendre d’urgence des mesures pour faire respecter strictement les normes du droit humanitaire international, y compris la poursuite et le châtiment des auteurs de crimes de guerre et d’autres cri- mes contre l’humanité.

Budapest 1994 (Décisions : IV. Code de conduite relatif aux aspects politico-militaires de la sécurité) 29. Les Etats participants diffuseront largement dans leurs pays respectifs les disposi- tions du droit international humanitaire de la guerre. Ils traduiront, conformément à leur pratique nationale, leurs engagements à cet égard dans leurs programmes et règle- ments de formation militaire.

30. Chaque Etat participant fera en sorte que les membres de ses forces armées reçoi- vent une instruction concernant le droit international humanitaire ainsi que les règles, conventions et engagements y relatifs régissant les conflits armés et veillera à ce que les membres de ses forces armées soient conscients qu’en vertu du droit national et interna- tional ils sont tenus individuellement responsables de leurs actes.

31. Les Etats participants veilleront à ce que les membres de leurs forces armées investis d’un pouvoir de commandement exercent leur autorité conformément au droit national et international et sachent qu’à ce double titre ils pourront être tenus individuellement responsables s’ils font un usage illégal de leur autorité et qu’ils ne sauraient donner des ordres contraires au droit national ou international. La responsabilité des supérieurs ne dégage pas les subordonnés de leurs propres responsabilités.

(…)

34. Chaque Etat participant veillera à ce qu’en temps de paix comme en temps de guerre, ses forces armées soient commandées, pourvues en effectifs, entraînées et équi- pées conformément aux dispositions du droit international et aux obligations et enga- gements qu’il a pu contracter concernant l’utilisation des forces armées en cas de conflit armé, notamment le cas échéant en vertu des Conventions de La Haye de 1907 et 1954, des Conventions de Genève de 1949 et des Protocoles additionnels de 1977, ainsi que de la Convention de 1980 sur l’emploi de certaines armes conventionnelles.

274 Les engagements de la dimension humaine de l’OSCE Pa rt i e II

35. Chaque Etat participant veillera à ce que sa politique et sa doctrine de défense soient conformes au droit international en matière d’utilisation des forces armées, y compris dans des conflits armés, et aux engagements pertinents du présent Code.

Budapest 1994 (Décisions : VIII. La dimension humaine) 33. Les Etats participants déplorent profondément les séries de violations flagrantes du droit international humanitaire qui se sont produites dans la région de la CSCE ces der- nières années et réaffirment leur engagement à respecter et à faire respecter le droit international humanitaire général et en particulier les instruments internationaux per- tinents, y compris les Conventions de Genève de 1949 et leurs Protocoles additionnels, auxquels ils sont parties.

34. Ils soulignent l’importance que pourrait avoir une déclaration sur les normes huma- nitaires minimales applicables dans toutes les situations et se déclarent prêts à partici- per activement à l’élaboration d’un tel texte dans le cadre des Nations Unies. Ils s’enga- gent à assurer à leurs personnels militaires une information et une formation adéqua- tes en ce qui concerne les dispositions du droit international humanitaire et considèrent que les informations pertinentes devraient être rendues disponibles.

35. Ils se félicitent vivement du développement de la coopération entre la CSCE et le Comité international de la Croix‑Rouge (CICR), en particulier dans le cas des mis- sions de la CSCE ; ils constatent avec satisfaction que le CICR est disposé à approfondir encore cette coopération et s’engagent eux‑mêmes à augmenter leur soutien au CICR, notamment en renforçant les contacts déjà établis entre les missions de la CSCE et les délégations du CICR sur le terrain.

Istanbul 1999 (Charte de sécurité européenne: III. Notre réponse commune) 22. Nous rejetons toute politique d’épuration ethnique ou d’expulsion massive. (…) Afin d’améliorer la protection des civils en temps de conflit, nous rechercherons les moyens de renforcer l’application du droit international humanitaire.

Sofia 2004 (Déclaration ministérielle sur le soixantième anniversaire de la fin de la Seconde Guerre mondiale) (…) Nous condamnons toutes les formes de nettoyage ethnique. Nous confirmons notre adhésion à la Convention des Nations Unies pour la prévention et la répression du crime de génocide, adoptée le 9 décembre 1948. Nous appelons les Etats participants à pren- dre toutes les mesures possibles pour veiller à prévenir toute tentative de génocide aujourd’hui et demain. Les auteurs de tels crimes devraient être traduits en justice.

Sofia 2004 (Décisions : Annexe à la Décision No. 14/04 ; Plan d’action de l’OSCE 2004 pour la promotion de l’égalité entre les sexes) IV. Promotion de la parité des sexes dans les Etats participants (…)

Les engagements de la dimension humaine de l’OSCE 275 Engagements relatifs à des menaces précises pesant sur la sécurité des personnes Pa rt i e II

42. Il est donc recommandé aux Etats participants :

(…)

• D’appuyer les efforts nationaux et internationaux visant à traduire en justice les auteurs de crimes à l’encontre de femmes qui sont reconnus en vertu des règles du droit inter- national comme crimes de guerre ou crimes contre l’humanité (…)

276 Les engagements de la dimension humaine de l’OSCE

ОБЯЗАТЕЛЬСТВА ОБСЕ В ОБЛАСТИ ЧЕЛОВЕЧЕСКОГО ИЗМЕРЕНИЯ Том I Сборник документов в тематическом порядке

второе издание

БДИПЧ ОБЯЗАТЕЛЬСТВА ОБСЕ В ОБЛАСТИ ЧЕЛОВЕЧЕСКОГО ИЗМЕРЕНИЯ Том I

Сборник документов в тематическом порядке

второе издание Опубликовано Бюро ОБСЕ по демократическим институтам и правам человека (БДИПЧ) Aleje Ujazdowskie 19 00-557 Warsaw Poland www.osce.org/odihr

© ОБСЕ/БДИПЧ 2006 г.

Все права защищены. Содержание этой публикации можно без ограничений использовать и воспроизводить в образовательных или других некоммерческих целях при обязательном упоминании ОБСЕ/БДИПЧ в качестве источника.

ISBN 83-60190-08-9

Дизайн: Нона Реутер

Отпечатано в Польше: Poligrafus Andrzej Adamiak

БДИПЧ выражает благодарность государствам-участникам за оказанную поддержку при издании этой книги. Содержание Предисловие ix Предисловие к первому изданию xi Введение — как использовать данный справочник xiii Человеческое измерение ОБСЕ: введение xv Документы ОБСЕ, упомянутые в настоящем сборнике документов xxv

I. Общие положения, относящиеся к человеческому измерению 1

1. Введение в человеческое измерение 3 1.1 Природа человеческого измерения и его важность 3 1.2 Человеческое измерение как предмет непосредственного и законного интереса международного сообщества 6 2. Выполнение обязательств 9 2.1 Обязанность выполнять обязательства 9 2.2 Методы выполнения 11 2.2.1 Общие положения, включая образовательную деятельность по правам человека 11 2.2.2 Обзор выполнения 13 2.2.3 Наблюдение за выборами 14 2.2.4 Механизмы человеческого измерения и другие механизмы, имеющие отношение к данной сфере 15 A. Венский механизм 15 B. Московский механизм 16 C. Механизм по оказанию государствам-участникам помощи в борьбе с торговлей людьми 22 D. Контртеррористическая сеть 24 E. Другие механизмы 26 2.3 Партнеры по выполнению 27 2.3.1 Правительства: органы власти и учреждения 27 2.3.2 Правительства других стран и международные организации 27 2.3.3 Частные лица, правозащитники и неправительственные организации 29 2.3.4 Институты ОБСЕ, обладающие особой важностью для человеческого измерения 34 A. Бюро по демократическим институтам и правам человека (БДИПЧ) 35 I. Основной мандат, включая дополнительные общие задачи 35 II. Дополнительные задачи, относящиеся к выборам 45 III. Контактный пункт БДИПЧ по вопросам рома и синти 45

Обязательства ОБСЕ в области человеческого измерения  Содержание

IV. Дополнительные задачи, относящиеся к толерантности и недискриминации, включая вопросы рома и синти 52 V. Дополнительные задачи, относящиеся к равенству между мужчинами и женщинами 57 VI. Дополнительные задачи, относящиеся к борьбе с торговлей людьми 58 VII. Дополнительные задачи, относящиеся к борьбе с терроризмом 61 B. Верховный комиссар по делам национальных меньшинств 62 C. Представитель по вопросам свободы средств массовой информации 71

3. Ограничения и отступления 77 3.1 Характер и рамки законных ограничений 77 3.2 Отступления от обязательств в условиях чрезвычайного положения 77

II. Отдельные обязательства по человеческому измерению 81

1. Обязательства, относящиеся к праву народов на самоопределение 83 2. Обязательства, относящиеся к структурным компонентам демократического общества 85 2.1 Общие положения 85 2.2 Выборы 88 2.3 Демократические институты 91 2.3.1 Общие положения 91 2.3.2 Децентрализация органов власти и специальные структуры и учреждения 94 2.3.3 Гражданский демократический контроль над вооруженными силами, военизированными формированиями, службами внутренней безопасности, и полицией 95 2.3.4 Независимые национальные институты в области прав человека 97 2.3.5 Неправительственные организации 97 2.3.6 Содействие транспарентности, борьба с коррупцией и повышение эффективности управления государственными ресурсами 98 2.4 Верховенство закона 100 2.4.1 Общие положения 100 2.4.2 Независимость судей и адвокатов, беспристрастное функционирование государственной судебной службы 103 2.4.3 Отправление правосудия 104 A. Правоохранительные органы 104 B. Обращение с лицами, лишенными свободы 106 2.4.4 Выполнение международных обязательств 108

3. Обязательства по правам человека, принадлежащим каждому человеку 109 3.1 Гражданские и политические права 109 3.1.1 Общие положения 109 3.1.2 Право на жизнь/отмена смертной казни 110

vi Обязательства ОБСЕ в области человеческого измерения  Содержание

3.1.3 Запрет пыток и другого жестокого, бесчеловечного или унижающего достоинство обращения или наказания 111 3.1.4 Право не подвергаться произвольному аресту или лишению свободы 114 3.1.5 Право на справедливое судебное разбирательство 115 3.1.6 Право на эффективные средства правовой защиты 117 3.1.7 Отказ от военной службы по убеждениям совести и альтернативная служба 119 3.1.8 Свобода мысли, совести, религии или убеждений 120 3.1.9 Свобода объединения и право на проведение мирных собраний 123 3.1.10 Свобода выражения мнения, свобода СМИ и доступа к информации 125 A. Общие положения 125 B. Свобода СМИ и условия работы журналистов 128 C. Свобода культурного и художественного выражения 135 3.1.11 Свобода передвижения, контактов между людьми и право на воссоединение семьи 137 3.1.12 Уважение частной и семейной жизни 146 3.1.13 Право на гражданство 146 3.1.14 Имущественные права 146 3.2 Экономические, социальные и культурные права 147 3.2.1 Общие положения 147 3.2.2 Экономические и социальные права 149 A. Общие положения 149 B. Права трудящихся 151 3.2.3 Культурные права/культурное наследие 152 3.2.4 Право на образование 154

4. Обязательства, относящиеся к правам человека, уделяющие особое внимание отдельным группам 155 4.1 Национальные меньшинства 155 4.1.1 Защита прав человека и основных свобод, включая равенство возможностей и недискриминацию 155 4.1.2 Эффективное участие в общественной и политической жизни 163 4.1.3 Культурная, языковая и религиозная самобытность и вопросы образования 165 4.1.4 Контакты между людьми, свобода СМИ и доступ к информации 169 4.1.5 Роль организаций и объединений 171 4.1.6 Защита от преступлений на почве ненависти 173 4.2 Рома и синти 174 4.2.1 Защита прав человека и основных свобод, включая равенство возможностей и недискриминацию 174 4.2.2 Эффективное участие в общественной и политической жизни 178 4.2.3 Доступ к образованию 180 4.2.4 Социально-экономические проблемы 182 4.2.5 Расизм и дискриминация 185 A. Борьба с расизмом и негативными стереотипами 185 B. Защита от преступлений на почве ненависти 187

Обязательства ОБСЕ в области человеческого измерения vii Содержание

4.2.6 Кризисные и послекризисные ситуации 188 4.3 Коренное население 189 4.4 Беженцы, перемещенные и возвращающиеся лица, лица без гражданства 189 4.5 Рабочие-мигранты 193 4.6 Лица с ограниченными возможностями 198 4.7 Дети 199 4.8 Военнослужащие 200 4.9 Лица, лишенные свободы 200

5. Обязательства, относящиеся к вопросам равенства, толерантности и недискриминации 203 5.1 Положения о равенстве и недискриминации 203 5.2 Равноправие мужчин и женщин 204 5.3 Борьба с действиями, мотивированными предубеждениями, нетерпимостью и ненавистью 209 5.3.1 Общие положения 209 5.3.2 Международные инструменты 219 5.3.3 Законодательство и применение законов и политики 219 5.3.4 Сбор информации и наблюдение 223 5.3.5 Поощрение толерантности, понимания и уважения, включая уважение памяти 224 5.3.6 Роль СМИ 231

6. Обязательства, относящиеся к особым угрозам человеческой безопасности 235 6.1 Предотвращение преследования, насилия и эксплуатации на гендерной почве 235 6.2 Предотвращение торговли людьми 237 6.2.1 Общие положения по поводу предотвращения 237 6.2.2 Расследование, правоохранительная деятельность, судебное преследование 248 6.2.3 Защита жертв и оказание им помощи 254 6.3 Предотвращение незаконной торговли наркотиками, оружием и других форм международной организованной преступности 260 6.4 Предотвращение терроризма 261 6.4.1 Осуждение терроризма и обязательство бороться с ним 261 6.4.2 Уважение прав человека и верховенства закона при борьбе с терроризмом 275 6.4.3 Предотвращение деятельности, связанной с терроризмом, на территории государств-участников 277 6.4.4 Выдача и судебное преследование лиц, причастных к террористическим актам 279

7. Обязательства, относящиеся к международному гуманитарному праву 281 Указатель 285

viii Обязательства ОБСЕ в области человеческого измерения Предисловие

Я рад представить вашему вниманию второе издание сборника документов, относящихся к обязательствам ОБСЕ в области человеческого измерения, который выходит в год празднования 30-летия Заключительного акта Хельсинки. Подписанный в 1975 году, Заключительный акт остается не только краеуголь- ным камнем общей концепции безопасности в Европе и во всем регионе ОБСЕ, но также направляет работу моего института — Бюро по демократическим институ- там и правам человека ОБСЕ. Заключительный акт Хельсински был первым международным документом, который признал защиту прав человека и основных свобод предметом между- народного внимания. Это является одним из десяти фундаментальных принци- пов построения межгосударственных отношений, обладающим тем же статусом, что и классические правила международных отношений, известные нам с самого начала современной эпохи. Но с 1975 года мир значительно изменился. Таким же образом изменилась сис- тема взглядов, разработанная ОБСЕ для всего региона. После исторических пере- мен 1989 года европейские страны приняли общую концепцию Заключительного акта Хельсинки и разработали на ее основе всеобъемлющий перечень норм и стандартов, в котором особое внимание уделяется правам человека. Эти базовые права наряду с принципами демократии и верховенства закона являются струк- турными компонентами понятия, которое ОБСЕ определяет как человеческое измерение безопасности. В 1990 году на Конференции по человеческому измерению в Копенгагене госу- дарства-участники ОБСЕ заложили фундамент того, что в дальнейшем должно было стать сводом основных правил для всего региона ОБСЕ, своеобразным acquis (свод законов) для многих развитых демократий мира. До сих пор ему нет равных среди любых аналогичных международных усилий, и он по-прежнему направляет нас в ежедневной работе. Таким образом, система взглядов, заложенная в Хельсинки, с тех пор развива- лась и стала всеобъемлющим перечнем стандартов. Хотя детали всех соответс- твующих обязательств описаны в данном сборнике, их суть отражается в несколь- ких базовых принципах: что уважение прав человека и основных свобод занимает центральное место в принятой ОБСЕ концепции безопасности; что государства несут ответственность перед всеми своими гражданами и друг перед другом за

Обязательства ОБСЕ в области человеческого измерения ix Предисловие

обеспечение того, чтобы эти права и свободы действительно уважались и защи- щались. Государства-участники ОБСЕ подтвердили, что БДИПЧ вместе с Верховным комиссаром по делам национальных меньшинств и Представителем по вопросам свободы средств массовой информации являются важнейшими инструментами для обеспечения уважения прав человека, принципов демократии и верховенс- тва закона. В 2001 году БДИПЧ опубликовало сборник обязательств по человеческому измерению в целях облегчения доступа к ним. Этот сборник является бесценным справочным инструментом для всех нас, кто имеет отношение к продвижению прав человека, демократии и верховенства закона. Однако новые обязательства и решения, принятые ОБСЕ, требуют постоянного внесения обновлений. Данное обновленное издание сборника содержит хронологическую и тематическую части и опубликовано в двух томах, т.к. объем обязательств растет. В конце концов, все сводится к тому, что сказал президент США Геральд Форд при подписании Заключительного Акта тридцать лет назад, что не важно, какие обещания мы делаем, а важно то, какие обещания мы выполняем. Государства- участники ОБСЕ разработали значительное количество норм и принципов в области человеческого измерения. Я надеюсь, что данное издание будет и далее способствовать развитию знаний и выполнению многих обязательств, которые государства-участники ОБСЕ приняли во благо их миллиардного населения.

Посол Кристиан Штрохал Директор Бюро ОБСЕ по демократическим институтам и правам человека

 Обязательства ОБСЕ в области человеческого измерения Предисловие к первому изданию

С момента своего создания Совещание по безопасности и сотрудничеству в Европе (СБСЕ), позднее преобразованное в Организацию по безопасности и сотрудничеству в Европе (ОБСЕ), в значительной степени представляло собой “незавершенное производство”, т.е. непрерывный процесс, который позволил существенно расширить его нормативную базу. Это расширение быстро ускори- лось в конце холодной войны в духе открытости и перемен, который стал харак- терной чертой Парижской хартии для новой Европы и других документов, приня- тых в начале 90-х годов. За время, прошедшее после подписания в 1975 году Хельсинкского Заклю- чительного акта, СБСЕ/ОБСЕ накопило весьма существенное количество обя- зательств в области прав человека, демократии, верховенства закона и нацио- нальных меньшинств. Число документов, принимаемых на встречах на высшем уровне и других политических форумах ОБСЕ, в которых содержатся обязатель- ства, относящиеся к так называемому “человеческому измерению ОБСЕ”, посто- янно возрастает. В результате этого становится все труднее отслеживать резуль- таты, достигнутые при разработке новых стандартов в области СБСЕ/ОБСЕ. Еще в 1992 году на Хельсинкской встрече на высшем уровне было рекомендо- вано “подготовить сборники существующих обязательств по СБСЕ в области человеческого измерения, призванные способствовать углублению понимания этих обязательств и, таким образом, их выполнению”. Впоследствии Бюро по демократическим институтам и правам человека ОБСЕ (ОБСЕ БДИПЧ) подго- товило в 1995 году хронологический сборник обязательств в области человечес- кого измерения. Этот сборник стал первым и важным шагом на пути облегче- ния доступа к корпусу обязательств ОБСЕ. Однако за пять лет, в течение кото- рых состоялись две встречи ОБСЕ на высшем уровне, данное издание устарело. Более того, оно всегда было не очень удобно в пользовании, учитывая его исклю- чительно хронологическую структуру и отсутствие индекса. В десятую годовщину ОБСЕ/БДИПЧ, основного института ОБСЕ, работающего в области человеческого измерения, я с удовольствием представляю читателю полностью пересмотренный сборник обязательств в области человеческого изме- рения ОБСЕ, который содержит не только обновленную хронологическую часть, но и впервые — тематическую часть, в которой по отдельным темам приведены все соответствующие обязательств в области человеческого измерения.

Обязательства ОБСЕ в области человеческого измерения xi Предисловие к первому изданию

Убежден, что данная публикация станет весьма необходимым, удобным в поль- зовании и практическим инструментом для государственных служащих, сотруд- ников ОБСЕ и широкой общественности, позволяя им легко ознакомиться с обя- зательствами ОБСЕ по конкретным предметным направлениям, а также в хроно- логическом порядке. Одной из причин успеха Хельсинкского Заключительного акта явилась дого- воренность между всеми государствами-участниками опубликовать этот доку- мент и обеспечить его максимально широкое распространение в своих странах. Это позволило гражданам государств-участников узнать об обязательствах, взя- тых на себя их правительствами, и призывать руководство своих стран к ответу за несоблюдение этих обязательств на практике. Публикуя и распространяя данное справочное пособие, ОБСЕ/БДИПЧ стре- мится способствовать тому, чтобы правительства государств-участников ОБСЕ, а также граждане и представители гражданского общества в регионе ОБСЕ лучше знали и понимали обязательства ОБСЕ в области человеческого измерения. Я искренне надеюсь, что данное издание, в конечном итоге, будет также содейство- вать дальнейшему прогрессу в выполнении этих обязательств правительствами государств-участников ОБСЕ.

Посол Жерар Студманн Директор Бюро ОБСЕ по демократическим институтам и правам человека, 1997-2002 гг.

xii Обязательства ОБСЕ в области человеческого измерения Введение — как использовать данный справочник

С момента подписания Заключительного акта Хельсинки в 1975 году теперь уже 55 государств-участников региона ОБСЕ приняли большое количество полити- ческих обязательств, относящихся к понятию, известному как человеческое изме- рение комплексной концепции безопасности, принятой ОБСЕ. Подборка обяза- тельств, содержащихся в тематической и хронологической частях этого издания, была сделана на основе определения человеческого измерения в том виде, как оно используется в настоящее время. Это охватывает все аспекты, относящиеся к правам человека и основным свободам, демократии, включая демократические выборы и демократическое управление и институты, толерантности и недискри- минации, верховенству закона и обязательства, затрагивающие вопросы нацио- нальных меньшинств, контактов между людьми и международное гуманитар- ное право.1 Кроме того, в сборнике документов содержатся положения по поводу механизмов наблюдения за выполнением этих обязательств, а также описаны базовые мандаты институтов ОБСЕ, которые ведут деятельность в сфере челове- ческого измерения. Документы, использованные при составлении этого справочника, были подпи- саны или иным образом приняты на различных мероприятиях высокого уровня, проводившихся СБСЕ/ОБСЕ. Несмотря на то, что в международном праве эти документы не считаются юридически обязательными соглашениями, они пред- ставляют собой политические обязательства, принятые в результате консенсуса и связывающие каждое участвующее государство. Поскольку они все были при- няты в результате консенсуса, они незамедлительно вступают в силу, так сказать, и немедленно становятся применимыми, и могут использоваться любым граж- данином или правительством государства-участника ОБСЕ в отношении пра- вительства любого другого государства-участника непосредственно. Более того, обязательства ОБСЕ подкрепляют, а не дублируют, обязательства, содержащиеся в международном законодательстве и соглашениях, поскольку в них содержится обязательство выполнять те и делать это добросовестно. Содержащиеся в этом сборнике положения по человеческому измерению утверждены в документах, которые появились в результате саммитов, встреч 1 Это определение также отражается в программе ежегодного Совещания по рассмотрению выполнения обязательств ОБСЕ в области человеческого измерения.

Обязательства ОБСЕ в области человеческого измерения xiii Введение — как использовать данный справочник

в рамках дальнейших шагов, конференций по человеческому измерению и, где уместно, встреч Совета министров, проводившихся с 1975 года. Также в дан- ном сборнике содержатся документы, которые были разработаны на соответс- твующих совещаниях экспертов и в дальнейшем были включены в корпус обяза- тельств СБСЕ/ОБСЕ на других форумах. Хотя целью издания этого справочника является комплексное объяснение нор- мативной базы ОБСЕ в области человеческого измерения, этот справочник не пытается предоставить полный перечень всех компонентов, которые могли бы иметь какое-либо отношение к какому-либо аспекту человеческого измерения. Необходимо подчеркнуть, что несмотря на то, что этот сборник уделяет основное внимание человеческому измерению и, следовательно, правам человека и демок- ратии, обязательства ОБСЕ всегда должны рассматриваться и пониматься в кон- тексте комплексной концепции безопасности, которая также охватывает вопросы военно-политического характера, экономические и социальные аспекты. Тот факт, что какое-либо положение было или не было включено в этот сборник, не означает, что оно не является важным. Исключительно из практических сообра- жений в некоторых случаях нам приходилось делать выбор, поскольку мы хотели, чтобы данный справочник был скорее удобным для пользователя руководством, чем энциклопедией. Он предназначен для использования государственными слу- жащими, организациями гражданского общества, учеными, студентами и специ- алистами.

xiv Обязательства ОБСЕ в области человеческого измерения Человеческое измерение ОБСЕ: введение

В 2005 году Организация по безопасности и сотрудничеству в Европе (ОБСЕ) отмечает тридцатилетие со дня подписания основавшего ее документа — Заключительного акта Хельсинки. С 1975 года ОБСЕ разработала большой комп- лект норм и стандартов прав человека, которые в основном отражают традицион- ные нормы по правам человека и представления о них в том виде, как они закреп- лены в других соглашениях и декларациях по правам человека. На этой основе, однако, ОБСЕ разработала ряд стандартов, которые являются весьма инноваци- онными как по форме, так и по содержанию. Цель данной публикации — сделать обязательства ОБСЕ более доступными как для граждан, так и для государственных чиновников в соответствии с одним из наиболее важных выводов Хельсинкского процесса. Права человека начина- ются с элемента получения прав или с “права знать свое право”. В момент при- нятия Хельсинкского Заключительного акта государства-участники приняли на себя обязательство сделать этот документ широко доступным. Это дало толчок к созданию многочисленных крупных правозащитных групп, таких, как “Хель- синкские группы” или “Хартия 77”, которые в своей деятельности опирались на Хельсинкский процесс и способствовали крушению монополии коммунистичес- кой власти в Центральной и Восточной Европе. Таким образом, спектр положе- ний ОБСЕ, касающихся прав человека, оказался одной из наиболее эффективных структур такого рода и по-прежнему продолжает играть важную роль. Это уникальная база, включающая набор документов, которые наряду с дру- гими новациями сделали права человека предметом законной озабоченности государств. Основы этого можно найти в Хельсинкском Заключительном акте, однако последующие документы, такие, как Копенгагенский документ 1990 года и Парижская хартия для новой Европы 1990 года позволили сформулировать ряд других важных положений, столь необходимых для сегодняшнего понимания человеческого измерения ОБСЕ. Цель настоящей статьи — дать рекомендации относительно того, как следует читать и использовать эти нормы, а также представить некоторые основные аспекты человеческого измерения ОБСЕ2 .

2 Совещание по безопасности и сотрудничеству в Европе (СБСЕ) было переименовано в Организацию по безопасности и сотрудничеству в Европе (ОБСЕ) в 1994 году. Для практических целей в настоящей статье используется лишь термин ОБСЕ.

Обязательства ОБСЕ в области человеческого измерения xv Человеческое измерение ОБСЕ: введение

А. Основы 1. Права человека и всеобъемлющая концепция безопасности ОБСЕ ОБСЕ была создана как “организация по безопасности”. Однако, она занима- ется не только вопросами военной безопасности, разоружения или границ. Осно- ванная на широкой концепции безопасности, Организация занимается также правами человека. ОБСЕ полагает, что безопасность — это нечто большее, чем просто отсутствие войны. Фактически государства-участники ОБСЕ стремились создать всеобъемлющие рамки для мира и стабильности в Европе. В Хельсинк- ском Заключительном акте в качестве одного из десяти руководящих принципов признается “уважение прав человека и основных свобод, включая свободу мысли, совести, религии и убеждений”. Это стало краеугольным камнем в истории защиты прав человека. Впервые права человека были включены в качестве четко сформулированного составного элемента в рамки региональной безопасности на той же основе, что и военно-политические и экономические вопросы. Такое при- знание было затем подкреплено многочисленными последующими документами. Поэтому сегодня данный факт можно считать свершившимся и не вызывающим сомнений. Эти принципы не выстроены в соответствии с какой-либо иерархией и поэтому никакое правительство не может утверждать, что вначале им необхо- димо обеспечить политическую или экономическую безопасность, а уже после этого заниматься вопросами прав человека и демократии. Недавняя история подтверждает обоснованность концепции ОБСЕ, которая гласит, что свободное общество, разрешающее каждому принимать полное учас- тие в общественной жизни, является гарантией от конфликтов и нестабильности. Так одним из примеров может быть факт, что отторжение от общества отде- льных лиц или некоторых групп, иногда по этническим причинам, приводило к напряженности, и даже вооруженным конфликтам. В качестве еще одного при- мера угрозы безопасности можно назвать кризисы, возникающие при появлении беженцев, чаще всего в результате массового нарушения прав человека. В терминологии ОБСЕ термин “человеческое измерение” используется для обозначения набора норм и видов деятельности, связанных с правами человека и демократией, которые рассматриваются в ОБСЕ в качестве одного из трех изме- рений безопасности, наряду с военно-политическим и экономико-экологическим измерениями. Данный термин свидетельствует также о том, что нормы ОБСЕ, относящиеся к человеческому измерению, охватывают более широкую область, чем традиционное право прав человека.

2. “Процесс” ОБСЕ С самого момента своего создания ОБСЕ подходила к своей деятельности как к процессу. В Хельсинкском Заключительном акте предусматривается проведение регулярных последующих конференций и встреч. Это весьма важно для понима- ния базы прав человека в ОБСЕ.

xvi Обязательства ОБСЕ в области человеческого измерения  Человеческое измерение ОБСЕ: введение

Во-первых, это означает, что существует форум для обсуждения выполнения стандартов, согласованных на предыдущих встречах. Во-вторых, это позволило принять целую серию последовательных документов ОБСЕ, которые уточняют и развивают обязательства в области человеческого измерения, принятые в преды- дущих документах. В результате этого ОБСЕ создало весьма гибкий и динамич- ный процесс нормотворчества в области прав человека — процесс, который стал постоянным. Одно из нововведений, зафиксированное в последних документах, это, например, признание торговли людьми гуманитарной проблемой, которая раньше, как правило, рассматривалась в контексте организованной преступности (Венское заседание Совета министров 2000 года). Обязательства ОБСЕ, как правило, принимают форму документов, принимае- мых консенсусом на встречах на высшем уровне или на уровне министров госу- дарств-участников ОБСЕ. Каждая такая встреча проходит в конкретной поли- тической атмосфере и контексте. Неудивительно, что встречи на высшем уровне ОБСЕ сыграли разную роль в создании новых обязательств. И если одни встречи, особенно в начале 90-х годов, позволили разработать широкий набор важных новых норм, то другие ограничились незначительными изменениями и дополне- ниями. Такой “процессный” подход позволил принять большое число документов ОБСЕ. В результате практикующим специалистам не всегда легко определить, какие именно стандарты применяются в данной конкретной ситуации, особенно учитывая, что в каждом документе в той или иной степени содержатся как пов- торы, так и новшества. В качестве главного ориентира пользователю следует иметь в виду, что все документы в совокупности составляют нормативную базу ОБСЕ. То есть с принятием новых документов уже существующие документы не теряют своей силы. Документы опираются один на другой и образуют то, что можно назвать “достоянием ОБСЕ”. Они были приняты на основе консенсуса и, как таковые, являются политически обязательными для всех государств-участни- ков ОБСЕ. Это относится также и к вновь принятым в ОБСЕ государствам, кото- рые при вступлении обязаны признать это “достояние”. Как следствие, пользователю не следует полагаться на какой-то один документ, а необходимо проверить целый ряд существующих документов, с тем, чтобы опре- делить фактический объем обязательств по тому или иному праву или основной свободе. Часто в ранее принятом документе лишь провозглашается общий при- нцип, который позднее получает развитие в последующих документах. Однако поскольку обязательства и документы построены один на другом, обязательства, зафиксированные в ранее принятом документе, не теряют своей силы, если в пос- ледующем документе содержится лишь общая ссылка на данное право. В то же самое время, каждый документ в целом отражает конкретный истори- ческий контекст, а его структура следует определенной логике, которая включает различные части данного документа в более широкий контекст. Поэтому прочте- ние всего документа может также дать важную информацию в плане понимания и толкования соответствующих норм. Это, собственно, и объясняет двойной под- ход при составлении настоящего сборника, который состоит из тематического и хронологического разделов.

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3. Обязательства в области человеческого измерения и плюралистическая демократия, основанная на верховенстве закона В ряде случаев обязательства в области человеческого измерения ОБСЕ идут гораздо дальше, чем “традиционные” юридически обязательные инструменты в области прав человека. В традиционных договорах в области прав человека фор- мулируются личные (или коллективные) права, а государство-участник обязуется соблюдать и/или гарантировать эти права. Однако, в большинстве случаев поря- док выполнения этих обязательств остается на усмотрение государств. Человеческое измерение ОБСЕ идет гораздо дальше по пути увязки прав чело- века с институциональной и политической системой государства. По сути госу- дарства-участники ОБСЕ, взяв на себя обязательства в области человеческого измерения, согласились с тем, что плюралистическая демократия, основанная на верховенстве закона, представляет собой единственную систему управления, способную эффективно гарантировать права человека. Это объясняет, почему человеческое измерение ОБСЕ было названо общеевро- пейским общественным порядком (ordre public). Другими словами, ОБСЕ - это не просто организация, объединяющая 55 государств, а это “общность ценностей”. Эту связь отражает и активная приверженность верховенству закона и сама его формулировка: концепция, основанная на достоинстве человеческой личности, и система прав, реализуемых через судебно-правовые структуры.

4. Политические обязательства Процесс ОБСЕ в основном представляет собой политический процесс, кото- рый не создает юридически обязательных норм и принципов. В отличие от дру- гих документов, связанных с правами человека, обязательства в области челове- ческого измерения ОБСЕ являются скорее политически, чем юридически обя- зательными. Это очень важное отличие, поскольку оно ограничивает возмож- ности использования правовых механизмов для соблюдения стандартов ОБСЕ. Другими словами, выполнение обязательств ОБСЕ нельзя обеспечить через суд. Однако, это не следует ошибочно понимать как свидетельство отсутствия у них обязательной силы. Различие здесь между “юридически” и “политически”, а не между “обязательные” и “необязательные”. Это означает, что обязательства ОБСЕ представляют собой нечто большее, чем простая декларация воли или добрых намерений: речь идет о политическом обещании соблюдать эти стандарты. Если для обсуждения международно-правовых документов, как правило, тре- буется значительное время, прежде чем удается согласовать окончательный текст, а заключительные документы являются предметом ратификации и оговорок, то к документам ОБСЕ это не относится. Их политическая природа позволяет создать уникальную ситуацию: после того, как между государствами был достигнут кон- сенсус, решения вступают в силу немедленно и в принципе являются обязатель- ными для всех государств-участников ОБСЕ (так называемый принцип универ- сальности). Это позволяет ОБСЕ оперативно реагировать на новые потребности. Так, например, когда в начале 90-х годов участились случаи нарушений прав человека

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в отношении меньшинств, ОБСЕ первой отреагировала и разработала комплекс- ный набор стандартов в области защиты меньшинств. Позднее эти политические стандарты послужили основой для юридически обязательной Рамочной конвен- ции Совета Европы о защите национальных меньшинств.

5. Человеческое измерение как предмет пристального международного внимания Основополагающим аспектом человеческого измерения в ОБСЕ является то, что права человека и плюралистическая демократия не рассматриваются как внутреннее дело государства. Государства-участники подчеркнули, что воп- росы, касающиеся прав человека, основных свобод, демократии и верховенства закона, носят международный характер, поскольку соблюдение этих прав и сво- бод составляет одну из основ международного порядка. Фактически государства- участники “категорически и окончательно” заявили, что “обязательства, приня- тые ими в области человеческого измерения ОБСЕ, являются вопросами, пред- ставляющими непосредственный и законный интерес для всех государств-участ- ников, и не относятся к числу исключительно внутренних дел соответствующего государства” (Московский документ, 1991). Поэтому государства-участники ОБСЕ уже не могут ссылаться на принцип невмешательства в целях избежания обсуж- дения проблем прав человека в своих странах. Это объясняет, почему ОБСЕ явля- ется не только “общностью ценностей”, но и “общностью ответственности”. Сле- дует подчеркнуть, что эта “ответственность” предполагает не только право кри- тиковать другие государства за нарушения обязательств в области человеческого измерения, но и накладывает обязательства помогать друг другу в решении кон- кретных проблем.

6. Ограничение и связь с международными договорами в области прав человека Обязательства ОБСЕ отражают как традиционные права человека и свободы, так и некоторые области, выходящие за сферу традиционных прав человека. Как и в других международных договорах, касающихся прав человека, важный вопрос заключается в том, до какой степени они могут ограничиваться. Это важно для любого практика, пытающегося определить, было ли нарушено какое-либо опре- деленное право. Некоторые провозглашенные ОБСЕ свободы содержат конкрет- ные положения об ограничении. Однако в Копенгагенском документе ОБСЕ сфор- мулировано важное общее правило в отношении упомянутых в этом документе прав. Они не должны быть объектом никаких ограничений, кроме тех, которые предусмотрены законом и соответствуют их обязательствам по международ- ному праву, в частности по Международному пакту о гражданских и политичес- ких правах. Ограничения не должны применяться произвольно и всегда должны приниматься как исключение из общего правила, гласящего, что личные свободы должны соблюдаться. Любое ограничение должно быть строго соразмерно целям закона. Такой тест на пропорциональность требует узкого толкования, тем более

Обязательства ОБСЕ в области человеческого измерения xix Человеческое измерение ОБСЕ: введение

что любое вмешательство должно сопоставляться с огромной ценностью таких основных свобод для открытого и демократического общества.

В. Институты и выполнение 1. Ответственность за выполнение обязательств в области человеческого измерения ОБСЕ Описанная выше правовая база прав человека существует в интересах всех людей, проживающих в регионе ОБСЕ, и неслучайно права человека и основные свободы в ней названы в качестве “прав всех людей от рождения”. В первую оче- редь, ответственность за гарантирование этих прав возложена на государства- участники ОБСЕ. Обязательства в области человеческого измерения ОБСЕ адре- сованы, в соответствии с другими международными договорами в области прав человека, государствам-участникам. Обязательства еще более усиливают этот общий принцип, подчеркивая, что “защита и поощрение прав человека и основ- ных свобод являются основополагающей целью правительства”. В отличие от других договоров в области прав человека, 3 ОБСЕ не учредило суда или иного органа для рассмотрения жалоб отдельных лица, с тем, чтобы обес- печить выполнение обязательств ОБСЕ. Это отражает политический характер процесса ОБСЕ и намерение не дублировать существующие механизмы. Напро- тив, ОБСЕ усиливает эти важные механизмы и призывает все государства-участ- ники использовать существующие возможности и соблюдать стандарты, установ- ленные другими международными организациями. Важно также отметить, что отсутствие механизма для рассмотрения индивидуальных жалоб не исключает возможности доведения этих случаев до сведения политических органов ОБСЕ.

2. Встречи на высшем уровне и другие последующие встречи Как уже указывалось, Хельсинкский Заключительный акт предусматривает проведение регулярных последующих совещаний, исходя из того, что для реали- зации договоренностей требуется постоянный процесс. Такой подход, основан- ный на непрерывном процессе, со временем позволил создать отработанную сис- тему политических встреч на высшем уровне и других совещаний, на которых обсуждаются вопросы, связанные с выполнением обязательств ОБСЕ 4 .

3 См., например, Европейскую конвенцию о правах человека, в соответствии с которой создан Европей- ский суд по правам человека или Международный пакт о гражданских и политических правах ООН, в соответствии с которым создан Комитет ООН по правам человека. 4 Встречи на высшем уровне ОБСЕ и заседания Совета министров обычно принимают новые заявле- ния и документы. Конференции по рассмотрению предшествуют встречам на высшем уровне ОБСЕ и служат для обсуждения соблюдения стандартов ОБСЕ и готовят заключительные документы, которые затем принимаются на встречах на высшем уровне. Совещания по выполнению обязательств по чело- веческому измерению ОБСЕ проходят в годы, когда не проводятся встречи на высшем уровне ОБСЕ, и служат в качестве форума для обсуждения вопросов, связанных с выполнением обязательств в области человеческого измерения ОБСЕ. Кроме того, ежегодно организуются семинары по вопросам человечес- кого измерения и три дополнительные встречи по человеческому измерению. Для получения дополни- тельной информации см. “Справочник ОБСЕ ”, 4-е издание, Вена, 2000.

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Такая иногда комплексная структура встреч на высшем уровне — саммитов, совещаний, конференций и семинаров порождает два важных результата. Во-пер- вых, она позволяет государствам-участникам включиться в гармоничный про- цесс нормотворчества. Государства-участники могут оперативно реагировать на новые потребности и, опираясь на ранее принятые обязательства ОБСЕ, уточнять порядок их применения. Во-вторых, такая структура предоставляет в распоряже- ние государств-участников ОБСЕ форум для обсуждения вопросов, связанных с фактическим выполнением обязательств в области человеческого измерения. Это отражает принцип, что обязательства ОБСЕ являются предметом прямой и законной озабоченности всех государств-участников ОБСЕ и не входят в число внутренних вопросов какого-либо конкретного государства. Важной особенностью встреч ОБСЕ по вопросам человеческого измерения является то, что они открыты для активного участия неправительственных орга- низаций (НПО). НПО могут таким образом принимать участие в решении про- блем, связанных с фактическим выполнением обязательств в области человечес- кого измерения, и предлагать пути решения этих проблем.

3. Механизм человеческого измерения Наряду с этими регулярными встречами ОБСЕ также создала так называемый механизм человеческого измерения, а именно Венский механизм 5 и Московский механизм6 , причем последний частично представляет собой дальнейшее разви- тие Венского механизма. Вместе они образуют процесс для надзора за выполне- нием обязательств в области человеческого измерения, к помощи которого отде- льные государства-участники ОБСЕ могут прибегать для рассмотрения конкрет- ных ситуаций. Венский механизм позволяет государствам-участникам использовать набор процедур для того, чтобы поднять вопросы, связанные с выполнением обяза- тельств в области человеческого измерения другим государством-участником ОБСЕ. Московский механизм опирается на Венский механизм и дополнительно предоставляет возможность формировать специальные миссии независимых экс- пертов для оказания помощи в решении конкретных проблем, связанных с воп- росами человеческого измерения. Это предполагает право расследования сооб- щений о нарушениях обязательств в области человеческого измерения, причем в исключительных случаях это может делаться даже без согласия обвиняемого государства. На практике механизм человеческого измерения применяется редко отчасти из-за того, что ОБСЕ стала постоянно действующей организацией, а также по политическим соображениям, которые связаны с использованием таких специ- альных механизмов7.

5 Создан в соответствии с Венским Заключительным документом 1989 года. 6 Решение о создании Московского механизма было принято на последнем совещании Конференции по человеческому измерению ОБСЕ в Москве (1991). 7 Тем не менее, независимый институт ОБСЕ, Бюро по демократическим институтам и правам человека, продолжает вести список экспертов, как того требует Московский механизм.

Обязательства ОБСЕ в области человеческого измерения xxi Человеческое измерение ОБСЕ: введение

4. Институты ОБСЕ, деятельность которых связана с человеческим измерением ОБСЕ отошла от “конференционного” подхода, применявшегося в прошлые годы, и создала целый ряд постоянных институтов для оказания государствам- участникам помощи в выполнении своих обязательств в области человеческого измерения ОБСЕ. Эти институты играют все возрастающую роль. Ниже приво- дится весьма краткий обзор этих институтов без детального рассмотрения их деятельности.

а. Бюро по демократическим институтам и правам человека Первоначально созданное как Бюро по свободным выборам в 1990 году, Бюро по демократическим институтам и правам человека (БДИПЧ) ОБСЕ, располо- женное в Варшаве, является основным институтом ОБСЕ для работы в области человеческого измерения. Хельсинкский документ 1992 года обозначил мандат БДИПЧ, заключающийся в оказании помощи государствам-участникам ОБСЕ в том, чтобы “обеспечить полное уважение прав человека и основных свобод, дейс- твовать на основе законности, проводить в жизнь принципы демократии…, созда- вать, укреплять и защищать демократические институты, а также развивать при- нципы терпимого отношения в масштабах всего общества”. В соответствии со своим мандатом и задачами, содержащимися в многочис- ленных документах, БДИПЧ занимается поддержкой демократических процес- сов в области выборов посредством ведения всестороннего наблюдения за выбо- рами и проведения проектов в области содействия выборам напрвленные на раз- витие реальной, всенародной демократии. БДИПЧ также оказывает содействие государствам-участникам ОБСЕ в выполнении их обязательств по человеческому измерению посредством предоставления экспертной оценки и практической помощи в построении демократических институтов. Это делается при помощи долгосрочных программ по укреплению верховенства закона, повышению демок- ратического управления и развитию гражданского общества. БДИПЧ также ока- зывает помощь миссиям ОБСЕ на местах в их деятельности в области человечес- кого измерения посредством проведения учебных секций, обмена опытом и путем ведения региональной координации, и способствует раннему предупреждению о конфликтах и их предотвращению при помощи мониторинга выполнения обяза- тельств ОБСЕ в области человеческого измерения государствами-участниками. В этой связи БДИПЧ также регулярно проводит учебные секции по правам чело- века для государственных служащих, представителей гражданского общества и для своих сотрудников. БДИПЧ также помогает государствам-участникам в выполнении их междуна- родных правовых обязательств и обязательств ОБСЕ по ведению борьбы с терро- ризмом с соблюдением международных стандартов по правам человека, и помо- гает государствам в выполнении их обязательств по толерантности и недискри- минации. В этом контексте БДИПЧ также поддерживает усилия по реагирова- нию на преступления на почве ненависти и случаи расизма, антисемитизма и дру- гих форм нетерпимости, в том числе в отношении мусульман, а также поддержи- вает усилия по борьбе с подобными явлениями. БДИПЧ также служит Контрак-

xxii Обязательства ОБСЕ в области человеческого измерения  Человеческое измерение ОБСЕ: введение

тным пунктом ОБСЕ по вопросам рома и синти и стремится к обеспечению пол- ной интеграции групп рома и синти в общества, в которых они живут. Во всей своей деятельности БДИПЧ разрабатывает политику и отдельные меры для обес- печения включения аспекта гендера во все сферы и предпринимает действия, раз- работанные для улучшения положения женщин в регионе ОБСЕ. Для систематизации своей деятельности в области человеческого измерения БДИПЧ проводит регулярные совещания, на которых рассматривается выпол- нение обязательств ОБСЕ по человеческому измерению и выносятся рекоменда- ции по дальнейшим действиям. Во всей своей деятельности БДИПЧ опирается на сеть партнеров, которые работают в смежных областях, включая международные и местные неправительственные организации по правам человека, а также меж- дународные правительственные организации, в частности Верховный Комиссар ООН по правам человека и Совет Европы.

b. Верховный комиссар по вопросам национальных меньшинств В задачи Верховного комиссара ОБСЕ по вопросам национальных меньшинств (этот институт был создан в Гааге в 1992 году) входит выявление и скорейшее раз- решение ситуаций, связанных с этнической напряженностью, которые могли бы создать угрозу для мира, стабильности или дружеских отношений между госу- дарствами-участниками ОБСЕ. Действуя независимо от всех заинтересованных сторон, Верховный комиссар направляет свои миссии на места и проводит политику превентивной диплома- тии на раннем этапе возникновения напряженности. Верховный комиссар стре- мится не только получать информацию из первых рук, но и пытается способство- вать укреплению диалога, доверия и сотрудничества.

c. Представитель по вопросам свободы средств массовой информации Представитель ОБСЕ по вопросам свободы СМИ оказывает государствам- участникам помощь в формировании свободных, независимых и плюралисти- ческих СМИ, как одного из основополагающих элементов в нормально функци- онирующей плюралистической демократии. Представитель, офис которого нахо- дится в Вене, следит за событиями в области СМИ во всех государствах-участ- никах и отстаивает соответствующие принципы и обязательства ОБСЕ, способс- твуя таким образом их выполнению.

C. Заключительные замечания Государства-участники ОБСЕ создали впечатляющий «корпус» норм и принци- пов в области человеческого измерения. Документы ОБСЕ содержат множество важных обязательств в области человеческого измерения, которые позволили Организации играть ведущую и новаторскую роль в этой области. Хочется наде- яться, что данное издание будет способствовать дальнейшей пропаганде, а также выполнению этих многочисленных, зачастую весьма детализированных обяза-

Обязательства ОБСЕ в области человеческого измерения xxiii Человеческое измерение ОБСЕ: введение

тельств, которые взяли на себя государства-участники ОБСЕ в области прав чело- века и основных свобод, верховенства закона и демократии.

xxiv Обязательства ОБСЕ в области человеческого измерения Документы ОБСЕ, упомянутые в настоящем сборнике документов

Заключительный акт Совещания по безопасности и сотрудничеству в Европе, Хельсинки, 1 августа 1975 г. (далее Хельсинки 1975 г.)

Итоговый документ мадридской встречи 1980 г. — Вторая Встреча в рамках даль- нейших шагов, Мадрид, 6 сентября 1983 г. (далее Мадрид 1983 г.)

Итоговый документ венской встречи 1986 г. — Третья Встреча в рамках дальней- ших шагов, 15 января 1989 г. (далее Вена 1989 г.)

Доклад о выводах и рекомендациях совещания по защите окружающей среды, Вена, 5 ноября 1990 г. (далее София 1989 г.)

Документ боннской конференции по экономическому сотрудничеству в Европе, Бонн, 11 апреля 1990 г. (далее Бонн 1990 г.)

Документ копенгагенского совещания Конференции по человеческому измере- нию СБСЕ, Копенгаген, 29 июня 1990 года (далее Копенгаген 1990 г.)

Парижская Хартия для новой Европы, Париж, 21 ноября 1990 г. (далее Париж 1990 г.)

Документ краковского Симпозиума по культурному наследию государств-участ- ников СБСЕ, Краков, 6 июня 1991 г. (далее Краков 1991 г.)

Доклад совещания экспертов СБСЕ по вопросам национальных меньшинств, Женева, 19 июля 1991 г. (далее Женева 1991 г.)

Документ московского совещания Конференции по человеческому измерению СБСЕ, Москва, 3 октября 1991 г. (далее Москва 1991 г.)

Документ второй Встречи Совета СБСЕ, Прага, 30-31 января 1992 г. (далее Прага 1992 г.)

Обязательства ОБСЕ в области человеческого измерения xxv Документы ОБСЕ, упомянутые в настоящем сборнике документов

Итоговый документ хельсинкской встречи 1992 г. — четвертая Встреча в рамках дальнейших шагов, Хельсинки, 10 июля 1992 г. (далее Хельсинки 1992 г.)

Документ третьей встречи Совета СБСЕ, Стокгольм, 14-15 декабря 1992 г. (далее Стокгольм 1992 г.)

Документ четвертой встречи Совета СБСЕ, Рим, 30 ноября - 1 декабря 1993 г. (далее Рим 1993 г.)

Будапештский документ, Будапешт, 6 декабря 1994 г. (далее Будапешт 1994 г.)

Лиссабонский документ, Лиссабон, 3 декабря 1996 г. (далее Лиссабон 1996 г.)

Документ шестой встречи Совета министров, Копенгаген, 18-19 декабря 1997 г. (далее Копенгаген 1997 г.)

Документ седьмой встречи Совета министров, Осло, 2-3 декабря 1998 г. (далее Осло 1998 г.)

Стамбульский документ, Стамбул, 19 ноября 1999 г. (далее Стамбул 1999 г.)

Документ восьмой встречи Совета министров, Вена, 27-28 ноября 2000 г. (далее Вена 2000 г.)

Документ девятой встречи Совета министров, Бухарест, 3-4 декабря 2001 г. (далее Бухарест 2001 г.)

Документ десятой встречи Совета министров, Порту, 6-7 декабря 2002 г. (далее Порту 2002 г.)

Документ одиннадцатой встречи Совета министров, Маастрихт, 1-2 декабря 2003 г. (далее Маастрихт 2003 г.)

Документ двенадцатой встречи Совета министров, София, 6-7 декабря 2004 г. (далее София 2004 г.)

xxvi Обязательства ОБСЕ в области человеческого измерения  I. Общие положения, относящиеся к человеческому измерению 1. Введение в человеческое измерение

1.1 Природа человеческого измерения и его важность

Хельсинки 1975 г. (Вопросы, относящиеся к безопасности в Европе: 1. (a) Декла- рация принципов, которыми государства-участники будут руководствоваться во взаимных отношениях; Принципы VII-IX) VII. Уважение прав человека и основных свобод, включая свободу мысли, совести, религии и убеждений (…) Государства-участники признают всеобщее значение прав человека и основных свобод, уважение которых является существенным фактором мира, справедли- вости и благополучия, необходимых для обеспечения развития дружественных отношений и сотрудничества между ними, как и между всеми государствами. (…) IX. Сотрудничество между государствами [Государства-участники] будут стремиться, развивая свое сотрудничество как равные, содействовать взаимопониманию и доверию, дружественным и добросо- седским отношениям между собой, международному миру, безопасности и спра- ведливости. Они будут, равным образом, стремиться, развивая свое сотрудничес- тво, повышать благосостояние народов и способствовать претворению в жизнь их чаяний, используя, в частности, выгоды, вытекающие из расширяющегося взаим- ного ознакомления и их прогресса и достижений в экономической, научной, тех- нической, социальной, культурной и гуманитарной областях. Они будут предпри- нимать шаги по содействию условиям, благоприятствующим тому, чтобы делать эти выгоды доступными для всех; они будут учитывать интересы всех в сокраще- нии различий в уровнях экономического развития и, в частности, интересы раз- вивающихся стран во всем мире. Копенгаген 1990 г. (Преамбула) Государства-участники выражают свою убежденность в том, что полное уваже- ние прав человека и основных свобод и развитие обществ, основанных на плю-

Обязательства ОБСЕ в области человеческого измерения  Введение в человеческое измерение Ч АС Т Ь I

ралистической демократии и верховенстве закона, является необходимым усло- вием для обеспечения прогресса в деле создания стабильной обстановки про- чного мира, безопасности, справедливости и сотрудничества, которую они стре- мятся утвердить в Европе. (…) I (1) Государства-участники выражают свою убежденность в том, что защита и поощрение прав человека и основных свобод является одной из основополагаю- щих целей правления, и подтверждают, что признание этих прав и свобод явля- ется основой свободы, справедливости и мира. (…) V (41) Государства-участники подтверждают свою приверженность человеческому измерению СБСЕ и подчеркивают его важность как составной части сбалансиро- ванного подхода к безопасности и сотрудничеству в Европе. (…) Париж 1990 г. (Новая эра демократии, мира и единства) Мы заявляем, что наше уважение прав человека и основных свобод неизменно (…) Хельсинки 1992 г. (Декларация встречи на высшем уровне) 6. Мы приветствуем приверженность всех государств-участников нашим общим ценностям. Уважение прав человека и основных свобод, в том числе прав лиц, принадлежащих к национальным меньшинствам, демократия и верховенство закона, экономическая свобода, социальная справедливость и ответственное отношение к окружающей среде являются нашими общими целями. Они непре- ложны. (…) 7. Мы вновь подтверждаем, что руководящие принципы и общие ценности, изло- женные в хельсинкском Заключительном акте и Парижской хартии, которые воп- лощают обязательства государств друг перед другом и правительств перед сво- ими народами, не утратили своей силы. Они отражают коллективную совесть нашего сообщества. (…) 21. Наш подход основывается на всеобъемлющей концепции безопасности, впер- вые изложенной в Заключительном акте. Эта концепция устанавливает взаимо- связь между поддержанием мира и уважением прав человека и основных свобод. Она увязывает экономическую и экологическую солидарность и сотрудничество с мирными межгосударственными отношениями. Все это было необходимо для ослабления конфронтации и не утратило своего актуального значения для управ- ления процессом перемен сегодня.

 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Природа человеческого измерения и его важность

Хельсинки 1992 г. (Решения: VI. Человеческое измерение) (2) Государства-участники выражают свою твердую решимость обеспечить пол- ное уважение прав человека и основных свобод, действовать на основе закон- ности, проводить в жизнь принципы демократии и в этой связи создавать, укреп- лять и защищать демократические институты, а также развивать принципы тер- пимого отношения в масштабах всего общества. (…) Будапешт 1994 г. (Декларация встречи на высшем уровне) 14. Мы подтверждаем важную роль человеческого измерения во всех видах деятельности СБСЕ. Уважение прав человека и основных свобод, демократии и верховенства закона является необходимым компонентом безопасности и сотрудничества в регионе СБСЕ. Оно должно оставаться одной из главных целей деятельности СБСЕ. (…) Мы подчеркиваем важность контактов между людьми в преодолении наследия былых расколов. Будапешт 1994 г. (Решения: VIII. Человеческое измерение) 2. В рамках всеобъемлющей концепции безопасности права человека и основные свободы, верховенство закона и демократические институты, решающим обра- зом способствуя предотвращению конфликтов, служат основой мира и безопас- ности. Защита прав человека, в том числе прав лиц, принадлежащих к националь- ным меньшинствам, представляет собой краеугольный камень демократического гражданского общества. Пренебрежение этими правами, когда оно приобретало серьезный характер, становилось одной из причин экстремизма, региональной нестабильности и конфликтов. (…) Стамбул 1999 г. (Хартия европейской безопасности: II. Наши общие основы) 7. Мы вновь подтверждаем свою полную приверженность Уставу Организации Объединенных Наций и хельсинкскому Заключительному акту, Парижской хар- тии и всем другим принятым нами в рамках ОБСЕ документам. Эти документы воплощают наши общие обязательства и являются основой нашей работы. (…) В них установлены четкие нормы обращения государств-участников друг с дру- гом и со всеми людьми, находящимися на их территории. (…) Их добросовест- ное выполнение является крайне важным для отношений между государствами, между их правительствами и народами, а также между организациями, членами которых они являются. (…) Мы рассматриваем эти обязательства как наше общее достижение (…) (…) 9. Мы будем строить наши отношения в соответствии с концепцией общей и всео- бъемлющей безопасности, руководствуясь принципами равноправного партнерс- тва, солидарности и транспарентности. Безопасность каждого государства-учас- тника неразрывно связана с безопасностью всех других. Мы будем рассматривать

Обязательства ОБСЕ в области человеческого измерения  Введение в человеческое измерение Ч АС Т Ь I

человеческое, экономическое и военно-политическое измерения безопасности как единое целое. Порту 2002 г. (Декларация встречи Совета министров) 3. (…) наша организация должна вырабатывать на них новые ответы, охватываю- щие и укрепляющие все три измерения нашего всеобъемлющего подхода. Наши усилия по упрочению мира и стабильности должны идти рука об руку с нашей решимостью в полном объеме обеспечивать уважение прав человека, основных свобод и верховенства закона, а также укреплять необходимые предпосылки устойчивого развития во всех наших государствах. Маастрихт 2003 г. (I. Стратегия ОБСЕ по противодействию угрозам безопасности и стабильности в XXI веке) 4. Уважение прав человека и основных свобод, демократии и верховенства закона занимает центральное место в принятой ОБСЕ концепции всеобъемлющей безо- пасности. Прочные демократические институты и верховенство закона играют важную роль в предотвращении возникновения угроз. Если государственное управление поставлено слабо, а государство не обеспечивает надлежащих, рабо- тоспособных демократических институтов, которые укрепляли бы стабильность, то это само по себе может создавать питательную среду для возникновения ряда угроз. Точно так же появлению целого ряда потенциальных угроз могут способс- твовать систематические нарушения прав человека и основных свобод, включая права лиц, принадлежащих национальных меньшинствам. (…) 8. В этих условиях очевидно, что всеобъемлющий подход ОБСЕ к безопасности, охватывающей военно-политическое, экономическое и экологическое, а также человеческое измерения, ни в коей мере не утратил своей актуальности и нужда- ется в сохранении и дальнейшем укреплении. (…) 9. (…) За непосредственными причинами ведущих к насилию конфликтов стоят несоблюдение положений международного права, норм и принципов ОБСЕ, а также ряд факторов, относящихся к военно-политическому, экономическому и экологическому, а также человеческому измерениям.

1.2 Человеческое измерение как предмет непосредственного и законного интереса международного сообщества

Москва 1991 г. (Преамбула) Государства-участники подчеркивают, что вопросы, касающиеся прав человека, основных свобод, демократии и верховенства закона, носят международный характер, поскольку соблюдение этих прав и свобод составляет одну из основ международного порядка. Они категорически и окончательно заявляют, что обя- зательства, принятые ими в области человеческого измерения СБСЕ, являются вопросами, представляющими непосредственный и законный интерес для всех

 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Человеческое измерение как предмет непосредственного и законного интереса международного сообщества

государств-участников и не относятся к числу исключительно внутренних дел соответствующего государства. Лиссабон 1996 г. (Декларация о модели общей и всеобъемлющей безопасности для Европы XXI века) 5. Мы признаем, что в ОБСЕ государства подотчетны своим гражданам и несут друг перед другом ответственность за выполнение своих обязательств в рамках Организации. Стамбул 1999 г. (Хартия европейской безопасности: II. Наши общие основы) 7. (…) Все без исключения обязательства, принятые в рамках ОБСЕ, в равной мере распространяются на каждое государство-участник (…) Мы рассматриваем эти обязательства как наше общее достижение и поэтому считаем, что они представ- ляют непосредственный и законный интерес для всех государств-участников.

Обязательства ОБСЕ в области человеческого измерения  2. Выполнение обязательств

2.1 Обязанность выполнять обязательства

Хельсинки 1975 г. (Вопросы, относящиеся к безопасности в Европе: 1.(a) Декла- рация принципов, которыми государства-участники будут руководствоваться во взаимных отношениях; Принципы VII-X) VII. Уважение прав человека и основных свобод, включая свободу мысли, совести, религии и убеждений [Государства-участники] (…) будут постоянно уважать эти права и свободы в своих взаимных отношениях и будут прилагать усилия, совместно и самостоятельно, включая сотрудничество с Организацией Объединенных Наций, в целях содейс- твия всеобщему и эффективному уважению их. (…) Х. Добросовестное выполнение обязательств по международному праву (…) При осуществлении своих суверенных прав, включая право устанавливать свои законы и административные правила, они будут сообразовываться со сво- ими юридическими обязательствами по международному праву; они будут, кроме того, учитывать должным образом и выполнять положения Заключительного акта Совещания по безопасности и сотрудничеству в Европе. (…) Все принципы, изложенные выше, имеют первостепенную важность, и, следова- тельно, они будут одинаково и неукоснительно применяться при интерпретации каждого из них с учетом других. Государства-участники выражают свою решимость полностью уважать и приме- нять эти принципы, как они изложены в настоящей Декларации, во всех аспек- тах к их взаимным отношениям и сотрудничеству с тем, чтобы обеспечить каж- дому государству-участнику преимущества, вытекающие из уважения и примене- ния этих принципов всеми.

Обязательства ОБСЕ в области человеческого измерения  Выполнение обязательств Ч АС Т Ь I

Мадрид 1983 г. (Вопросы, относящиеся к безопасности в Европе: Преамбула) Государства-участники выражают свою решимость (…) • последовательно выполнять все положения Заключительного акта, и в част- ности строго и неукоснительно уважать и осуществлять на практике все десять принципов, содержащихся в Декларации принципов, которыми государства- участники руководствуются во взаимных отношениях, независимо от их поли- тических, экономических и социальных систем, а также их размера, географи- ческого положения и уровня экономического развития (…) Мадрид 1983 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) Государства-участники подчеркивают свою решимость поощрять и развивать эффективное осуществление прав человека и основных свобод, которые все выте- кают из достоинства, присущего человеческой личности, и являются существен- ными для ее свободного и полного развития, и обеспечивать постоянный и ощу- тимый прогресс в соответствии с Заключительным актом в целях дальнейшего и устойчивого продвижения в этой области во всех государствах-участниках, неза- висимо от их политических, экономических и социальных систем. Париж 1990 г. (Новая эра демократии, мира и единства) Мы заявляем, что наше уважение прав человека и основных свобод неизменно. Мы будем полностью соблюдать и развивать положения, касающиеся человечес- кого измерения СБСЕ. Москва 1991 г. (Преамбула) Государства-участники (…) заявляют о своей решимости выполнять все свои обя- зательства в области человеческого измерения и решать мирными средствами, индивидуально или совместно, любые связанные с ними вопросы на основе вза- имного уважения и сотрудничества. (…) Хельсинки 1992 г. (Декларация встречи на высшем уровне) 6. (…) Приверженность нашим обязательствам обеспечивает основу для участия и сотрудничества в СБСЕ, является залогом дальнейшего развития наших обществ. Стамбул 1999 г. (Хартия европейской безопасности: II. Наши общие основы) 7. Мы вновь подтверждаем свою полную приверженность Уставу Организации Объединенных Наций и хельсинкскому Заключительному акту, Парижской хар- тии и всем другим принятым нами в рамках ОБСЕ документам. Эти документы воплощают наши общие обязательства и являются основой нашей работы. Они помогли нам положить конец прежней конфронтации в Европе и открыть новую эру демократии, мира и солидарности во всем регионе ОБСЕ. В них установлены четкие нормы обращения государств-участников друг с другом и со всеми людьми, находящимися на их территории. Все без исключения обязательства, принятые в рамках ОБСЕ, в равной мере распространяются на каждое государство-участник.

10 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Методы выполнения

Их добросовестное выполнение является крайне важным для отношений между государствами, между их правительствами и народами, а также между органи- зациями, членами которых они являются. Государства-участники подотчетны своим гражданам и несут ответственность друг перед другом за выполнение ими обязательств, принятых ими в рамках ОБСЕ. Мы рассматриваем эти обязательс- тва как наше общее достижение и поэтому считаем, что они представляют непос- редственный и законный интерес для всех государств-участников.

2.2 Методы выполнения

2.2.1 Общие положения, включая образовательную деятельность по правам человека Хельсинки 1975 г. (Дальнейшие шаги после Совещания) Государства-участники, (…) 1. Заявляют о своей решимости, в период после Совещания, должным образом учитывать и выполнять положения Заключительного акта Совещания: а) в одностороннем порядке во всех случаях, которые подходят для такого дейс- твия; b) в двустороннем порядке путем переговоров с другими государствами-участни- ками; с) в многостороннем порядке путем встреч экспертов государств-участников, а также в рамках существующих международных организаций, таких как Европей- ская экономическая комиссия ООН и ЮНЕСКО в том, что касается сотрудничес- тва в области образования, науки и культуры; 2. Заявляют далее о своей решимости продолжать многосторонний процесс, начатый Совещанием: (a) путем проведения углубленного обмена мнениями как о выполнении положе- ний Заключительного акта и задач, определенных Совещанием (…) (…) Текст настоящего Заключительного акта будет опубликован в каждом государс- тве-участнике, которое распространит его и обеспечит возможно более широкое ознакомление с ним. Мадрид 1983 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) Они вновь подтверждают свою решимость полностью уважать и применять эти принципы и, соответственно, содействовать всеми мерами как в законодательном плане, так и на практике повышению их действенности. Они считают, что одной из таких мер могло бы явиться отражение в законодательстве — таким способом, который соответствует практике и процедурам каждой страны, — изложенных в Заключительном акте десяти принципов.

Обязательства ОБСЕ в области человеческого измерения 11 Выполнение обязательств Ч АС Т Ь I

(…) Они подтверждают особое значение Всеобщей декларации прав человека, Между- народных пактов о правах человека и других соответствующих международных документов в их совместных и самостоятельных усилиях по поощрению и раз- витию всеобщего уважения прав человека и основных свобод; они обращаются с призывом ко всем государствам-участникам действовать в соответствии с этими международными документами, а к тем государствам-участникам, которые этого еще не сделали, рассмотреть возможность присоединения к Пактам. Копенгаген 1990 г. (5) [Государства-участники] торжественно заявляют, что к числу элементов спра- ведливости, которые существенно необходимы для полного выражения досто- инства, присущего человеческой личности, и равных и неотъемлемых прав всех людей относятся следующие: (…) (5.21) с тем, чтобы дополнить внутренние меры правовой защиты и лучше обес- печивать уважение государствами-участниками принятых на себя междуна- родных обязательств, государства-участники рассмотрят вопрос о присоедине- нии к региональной или универсальной международной конвенции, касающейся защиты прав человека, такой как Европейская конвенция о правах человека или Факультативный протокол к Международному пакту о гражданских и политичес- ких правах, которые предусматривают процедуры правовой защиты отдельных лиц в международных органах. Москва 1991 г. (42) Государства-участники (42.1) подтверждают, что образование в области прав человека имеет основопо- лагающее значение и что в этой связи крайне важно, чтобы их граждан просве- щали относительно прав человека и основных свобод, а также обязательств ува- жать такие права и свободы, установленные в национальном законодательстве и международных договорах, участниками которых они могут являться; (42.2) признают, что эффективное образование в области прав человека способс- твует борьбе с нетерпимостью, религиозными, расовыми и этническими предрас- судками и ненавистью, в том числе против роман, ксенофобией и антисемитиз- мом; (42.3) будут содействовать разработке их компетентными органами, занимаю- щимися подготовкой учебных программ, эффективных учебных планов и курсов по правам человека для студентов всех уровней, особенно студентов, изучающих право, управление и общественные науки, а также учащихся военных и полицейс- ких учебных заведений и институтов государственного управления;

12 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Методы выполнения

(42.4) будут предоставлять их преподавателям информацию о всех положениях человеческого измерения СБСЕ; (42.5) будут поощрять сотрудничество между организациями и учебными заведе- ниями в разработке и обмене программами в области прав человека на нацио- нальном и международном уровне; (42.6) будут стремиться к тому, чтобы в рамках мероприятий, осуществляемых в целях развития образования в области прав человека в более широком смысле, учитывался опыт, программы и формы сотрудничества в существующих между- народных правительственных и неправительственных органах, таких как Орга- низация Объединенных Наций и Совет Европы.

2.2.2 Обзор выполнения Хельсинки 1992 г. (Решения: I. Укрепление институтов и структур СБСЕ) (26) Тщательный обзор выполнения обязательств по СБСЕ будет по-прежнему играть важную роль в деятельности СБСЕ, укрепляя тем самым сотрудничество между государствами-участниками. (27) Обзоры выполнения будут проводиться регулярно на конференциях по обзору и на специальных совещаниях, созываемых для этой цели в БДИПЧ и ЦПК (…) как это предусмотрено в соответствующих документах СБСЕ. (28) Эти обзоры выполнения будут носить характер совместной деятельности, будут всеобъемлющими по своему охвату и, в то же время, будут предоставлять возможность для рассмотрения конкретных проблем. (29) Государствам-участникам будет предложено делать вклады, отражающие их опыт выполнения, с особым упором на встретившиеся в этой связи проблемы, а также сообщать свои мнения по вопросам выполнения в пределах всего региона СБСЕ. Государствам-участникам предлагается распространять материалы с опи- санием их вклада заблаговременно до проведения совещания. (30) Обзоры должны предоставлять возможность определения действий, которые могут потребоваться для рассмотрения проблем. Совещания, на которых будет проводиться обзор выполнения, могут обращать внимание КСДЛ на любые пред- ложения по мерам, которые, по их мнению, было бы целесообразно предпринять для улучшения выполнения обязательств. Будапешт 1994 г. (Декларация встречи на высшем уровне) 14. (…) Чрезвычайно важное значение в области человеческого измерения имеют периодические обзоры выполнения наших обязательств, с самого начала играю- щие кардинальную роль в СБСЕ. (…) Будапешт 1994 г. (Решения: VIII. Человеческое измерение) 5. Развивая предусмотренные в Хельсинкском документе 1992 года структуры для обзора выполнения, а также стремясь к совершенствованию выполнения обяза-

Обязательства ОБСЕ в области человеческого измерения 13 Выполнение обязательств Ч АС Т Ь I

тельств в области человеческого измерения, государства-участники будут исполь- зовать Постоянный совет для более широкого диалога по вопросам человечес- кого измерения и для возможного принятия мер в случаях невыполнения обяза- тельств. С этой целью государства-участники постановляют, что вопросы челове- ческого измерения будут регулярно рассматриваться Постоянным советом. (…) 6. Они призывают действующего Председателя информировать Постоянный совет о поступивших сигналах относительно серьезных случаев невыполнения обязательств в области человеческого измерения, в том числе на основе сведе- ний, полученных от БДИПЧ, докладов и рекомендаций Верховного комиссара по делам национальных меньшинств (ВКНМ) или докладов руководителей миссий СБСЕ, а также информации, поступающей из соответствующего государства. Стамбул 1999 г. (Хартия европейской безопасности: III. Наш общий ответ) 14. (…) Мы в индивидуальном порядке подтверждаем свое желание полностью выполнять принятые нами обязательства. Мы также несем совместную ответс- твенность за то, чтобы отстаивать принципы ОБСЕ. (…) Мы будем в духе солидар- ности и партнерства сотрудничать на постоянной основе при рассмотрении воп- росов выполнения. (…)

2.2.3 Наблюдение за выборами Копенгаген 1990 г. (8) Государства-участники считают, что присутствие наблюдателей, как инос- транных, так и национальных, может повысить авторитетность избиратель- ного процесса для государств, в которых проводятся выборы. Поэтому они при- глашают наблюдателей от любых других государств-участников СБСЕ и любых соответствующих частных учреждений и организаций, которые пожелают этого, наблюдать за ходом их национальных выборов в объеме, допускаемом законом. Они также будут стремиться содействовать такому же доступу к избирательным процессам, проводимым на более низком, чем общенациональный уровне. Такие наблюдатели будут брать на себя обязательство не вмешиваться в избирательный процесс. (…) (12) Государства-участники, желая обеспечить большую открытость в выполне- нии обязательств, взятых на себя в разделе о человеческом измерении СБСЕ вен- ского Итогового документа, постановляют принять в качестве меры по укрепле- нию доверия присутствие наблюдателей, направляемых государствами-участни- ками, и представителей неправительственных организаций и других заинтересо- ванных лиц на судебных процессах, как это предусматривается в национальном законодательстве и международном праве; при этом понимается, что судебные процессы могут быть закрытыми (in camera) лишь при наличии обстоятельств, предписанных законом и соответствующих обязательствам по международному праву и международным обязательствам.

14 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Методы выполнения

2.2.4 Механизмы человеческого измерения и другие механизмы, имеющие отношение к данной сфере Стамбул 1999 г. (Хартия европейской безопасности: III. Наш общий ответ) 14. (…) Мы в индивидуальном порядке подтверждаем свое желание полностью выполнять принятые нами обязательства. Мы также несем совместную ответс- твенность за то, чтобы отстаивать принципы ОБСЕ. (…) мы преисполнены реши- мости сотрудничать в рамках ОБСЕ, а также с ее институтами и представителями и готовы использовать имеющиеся у ОБСЕ инструменты, средства и механизмы. Мы будем в духе солидарности и партнерства сотрудничать на постоянной основе при рассмотрении вопросов выполнения. A. Венский механизм Вена 1989 г. (Человеческое измерение СБСЕ) Государства-участники, Памятуя об обязательствах, взятых по Заключительному акту и другим докумен- там СБСЕ относительно уважения всех прав человека и основных свобод, кон- тактов между людьми и других связанных с этим вопросов гуманитарного харак- тера, Признавая необходимость улучшить выполнение своих обязательств по СБСЕ и их сотрудничество в этих областях, ниже именуемых как человеческое измере- ние СБСЕ, На основе принципов и положений Заключительного акта и других соответству- ющих документов СБСЕ решили: 1. обмениваться информацией и отвечать на запросы об информации и на пред- ставления, сделанные им другими государствами-участниками по вопросам, относящимся к человеческому измерению СБСЕ. Такие обращения могут быть направлены по дипломатическим каналам или адресованы любому органу, назна- ченному для этих целей; 2. проводить двусторонние встречи с другими государствами-участниками, кото- рые того пожелают, с целью изучения вопросов, относящихся к человеческому измерению СБСЕ, включая ситуации и конкретные случаи, имея в виду разре- шить их. Время и место таких встреч будут определяться по взаимной договорен- ности по дипломатическим каналам; 3. что любое государство-участник, которое сочтет это необходимым, может при- влекать внимание других государств-участников по дипломатическим каналам к ситуациям и случаям, касающимся человеческого измерения СБСЕ, включая те, вопрос о которых был поднят на двусторонних встречах, предусмотренных в пункте 2; 4. что любое государство-участник, которое сочтет это необходимым, может пре- доставлять информацию об обмене информацией и ответах на его запросы об

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информации и на представления (пункт 1) и о результатах двусторонних встреч (пункт 2), включая информацию относительно ситуаций и конкретных случаев на совещаниях Конференции по человеческому измерению, а также на следующих основных встречах СБСЕ. (…) Копенгаген 1990 г. (42) Государства-участники признают необходимость дальнейшего повышения эффективности процедур, как они определены в пунктах 1-4 раздела о человечес- ком измерении СБСЕ венского Итогового документа, и с этой целью постанов- ляют: (42.1) давать в как можно более короткие сроки, но не позднее чем через четыре недели, письменные ответы на запросы об информации и на представления, сде- ланные им в письменном виде другими государствами-участниками в соответс- твии с пунктом 1; (42.2) что двусторонние встречи, предусмотренные пунктом 2, будут проводиться по возможности скорее, как правило, в течение трех недель со дня представления запроса; (42.3) воздерживаться в ходе двусторонних встреч, проводимых в соответствии с пунктом 2, от постановки вопроса о ситуациях и случаях, не связанных с предме- том этих встреч, если только обе стороны не договорятся об этом. (…) B. Московский механизм Москва 1991 г. (Преамбула и I — с поправками, внесенные в Риме в 1993 году) С целью укрепления и расширения механизма человеческого измерения, изло- женного в разделе венского Итогового документа, посвященном человеческому измерению СБСЕ, а также развития и углубления обязательств, содержащихся в Документе Копенгагенского совещания Конференции по человеческому измере- нию СБСЕ, государства-участники принимают следующее: (1) Государства-участники подчеркивают, что механизм человеческого измере- ния, изложенный в пунктах 1-4 посвященного человеческому измерению СБСЕ раздела венского Итогового документа, является важным достижением процесса СБСЕ, доказавшим свою ценность как средства обеспечения большего уважения прав человека, основных свобод, демократии и верховенства закона путем диа- лога и сотрудничества, а также содействия решению конкретных относящихся к этой области вопросов. В целях дальнейшего улучшения выполнения обяза- тельств СБСЕ в области человеческого измерения они постановляют повысить эффективность этого механизма, а также укрепить и расширить его таким обра- зом, как это изложено в следующих пунктах.

16 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Методы выполнения

(2) Государства-участники вносят изменения в пункты 42.1 и 42.2 Документа Копенгагенского совещания в отношении того, что они будут давать в возможно короткий срок, но не позднее чем через десять дней, письменный ответ на запросы об информации и представления, с которыми к ним в письменном виде обратятся другие государства-участники согласно пункту 1 механизма человеческого изме- рения. Двусторонние встречи, о которых говорится в пункте 2 механизма чело- веческого измерения, проводятся, по возможности, в кратчайшие сроки, как пра- вило, в течение недели после получения запроса. (3) В институте СБСЕ* без задержек будет составлен список кандидатов, вклю- чающий до трех экспертов от каждого государства-участника. В качестве экспер- тов должны выступать известные специалисты, — в том числе, при возможности, обладающие опытом в вопросах, связанных с национальными меньшинствами, — желательно имеющие опыт в области человеческого измерения, которые могли бы беспристрастно выполнять свои функции. Эксперты назначаются на срок от трех до шести лет по усмотрению назначающего государства, при этом ни один эксперт не может выполнять свои функции более двух сроков подряд. В течение четырех недель после уведомления институтом СБСЕ о назначении любое государство-участник может сделать оговорки в отно- шении не более чем двух экспертов, подлежащих назначению другим государс- твом-участником. В этом случае назначающее государство может в течение четы- рех недель с момента уведомления об этих оговорках пересмотреть свое реше- ние и назначить другого эксперта или экспертов; если же оно подтвердит перво- начально намеченное назначение, то соответствующий эксперт не может прини- мать участие в каких-либо процедурах в отношении сделавшего оговорку госу- дарства без прямого согласия такого государства. Использование списка кандидатов начинается после назначения 45 экспертов. (4) Государство-участник может воспользоваться помощью миссии СБСЕ в составе до трех экспертов для рассмотрения или содействия решению на его тер- ритории вопросов, относящихся к человеческому измерению СБСЕ. В этом слу- чае государство выбирает из списка кандидатов соответствующее лицо или лиц. В миссию экспертов не могут включаться собственные граждане или резиденты этого государства-участника, любые предложенные им в список кандидатов лица или же более одного гражданина или резидента любого конкретного государс- тва. Приглашающее государство без задержек информирует институт СБСЕ об обра- зовании миссии экспертов, который в свою очередь уведомляет все государства- участники. Институты СБСЕ в необходимых случаях также оказывают такой мис- сии надлежащую поддержку. (5) Целью миссии экспертов является содействие решению конкретного вопроса или проблемы, относящихся к человеческому измерению СБСЕ. Такая миссия

* Решение относительно такого института будет принято Советом.

Обязательства ОБСЕ в области человеческого измерения 17 Выполнение обязательств Ч АС Т Ь I

может собирать информацию, необходимую для выполнения ее задач, и в над- лежащих случаях использовать добрые и посреднические услуги для содействия диалогу и сотрудничеству между заинтересованными сторонами. Соответствующее государство четко согласовывает с миссией ее полномочия и таким образом может возлагать на миссию экспертов выполнение любых допол- нительных функций, в частности установление фактов и консультативное обслу- живание, в целях рекомендации путей и средств содействия соблюдению обяза- тельств СБСЕ. (6) Приглашающее государство в полной мере сотрудничает с миссией экспер- тов и облегчает ее работу. Оно создает для миссии все необходимые условия для независимого осуществления ею своих функций. Оно, в частности, без задержек предоставляет миссии для выполнения ею своих задач возможность въехать на свою территорию, проводить там обсуждения и свободно передвигаться по ней, беспрепятственно встречаться с должностными лицами, неправительственными организациями и любыми группами или лицами, от которых она захочет полу- чить информацию. Миссия может также конфиденциально получать информа- цию от любого лица, группы или организации по рассматриваемым ею вопросам. Члены такой миссии соблюдают конфиденциальный характер своей задачи. Государства-участники воздерживаются от любых действий против лиц, органи- заций или институтов из-за их контактов с миссией экспертов или любой пере- данной ей открытой информации. Приглашающее государство выполняет любые просьбы миссии экспертов относительно сопровождения ее должностными лицами этого государства, если миссия сочтет это необходимым для облегчения своей работы или обеспечения своей безопасности. (7) Миссия экспертов как можно скорее представляет свои соображения пригла- шающему государству, желательно в течение трех недель после образования мис- сии. Приглашающее государство направляет соображения миссии наряду с изло- жением любых мер, которые оно приняло или намеревается принять по этому вопросу, другим государствам-участникам через институт СБСЕ не позднее чем через две недели после представления соображений. Эти соображения и любые замечания приглашающего государства могут обсуж- даться Комитетом старших должностных лиц, который может рассмотреть воп- рос о любых возможных последующих мерах. Конфиденциальный характер соображений и замечаний сохраняется до тех пор, пока они не будут доведены до сведения старших должностных лиц. До распро- странения соображений и любых замечаний, по тому же вопросу не может быть назначена другая миссия экспертов. (8) Кроме того, одно или несколько государств-участников, осуществившие пун- кты 1 или 2 механизма человеческого измерения, могут запросить институт СБСЕ выяснить у другого государства-участника, согласно ли оно пригласить миссию экспертов для рассмотрения на своей территории конкретного четко определен-

18 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Методы выполнения

ного вопроса, относящегося к человеческому измерению СБСЕ. Если другое госу- дарство-участник соглашается пригласить миссию экспертов для указанной цели, то применяется процедура, изложенная в пунктах 4-7. (9) Если какое-либо государство-участник (а) направило запрос в соответствии с пунктом 8 другому государству-участнику и это государство не образовало мис- сию экспертов в течение десяти дней после поступления запроса или (b) считает, что рассматриваемый вопрос не был разрешен в результате направления миссии экспертов, оно может при поддержке не менее пяти других государств-участни- ков приступить к формированию миссии в составе до трех докладчиков СБСЕ. Такое решение направляется институту СБСЕ, который без задержек уведомляет соответствующее государство, а также все другие государства-участники. (10) Запрашивающее государство или государства могут назначить одного чело- века из списка кандидатов для выполнения функции докладчика СБСЕ. Запра- шиваемое государство может, если оно примет такое решение в течение шести дней после уведомления институтом СБСЕ о назначении докладчика, назна- чить из списка кандидатов еще одного докладчика. В этом случае оба назначен- ных докладчика, которые не могут быть гражданами или резидентами любого из соответствующих государств, а также лицами, предложенными этими госу- дарствами в список кандидатов, по общему согласию без задержек назначают из списка кандидатов третьего докладчика. Если в течение восьми дней они не достигнут согласия, третий докладчик, который не может быть гражданином или резидентом любого из соответствующих государств или предложенным ими в список кандидатов лицом, назначается из списка кандидатов высшим должност- ным лицом органа СБСЕ, назначенного Советом. Положения второй части пункта 4 и всего пункта 6 применяются также к миссии докладчиков. (11) Докладчик(и) СБСЕ устанавливают факты, составляют по ним доклад и могут давать рекомендации относительно возможных решений поднятого воп- роса. Доклад докладчика (докладчиков), содержащий изложение фактов, предло- жения или рекомендации, представляется соответствующему государству-учас- тнику или соответствующим государствам-участникам и, если все соответс- твующие государства не договорятся об ином, институту СБСЕ не позднее чем через две недели после назначения последнего докладчика. Запрашиваемое госу- дарство представляет институту СБСЕ любые соображения по докладу, если все соответствующие государства не договорятся об ином, не позднее чем через две недели после его представления. Институт СБСЕ без задержек направляет доклад, а также любые соображения запрашиваемого или любого другого государства-участника всем государствам- участникам. Вопрос о докладе будет включен в повестку дня следующего очеред- ного заседания Комитета старших должностных лиц или Постоянного комитета СБСЕ, которые могут принять решение о любых возможных последующих дейс- твиях. Конфиденциальный характер доклада сохраняется до завершения этого

Обязательства ОБСЕ в области человеческого измерения 19 Выполнение обязательств Ч АС Т Ь I

заседания Комитета. До распространения доклада, по тому же вопросу не может быть назначено других докладчиков. (12) Если какое-либо государство-участник сочтет, что в другом государстве-учас- тнике выполнение положений, относящихся к человеческому измерению СБСЕ, находится под особо серьезной угрозой, оно может при поддержке не менее девяти других государств-участников использовать процедуру, установленную в пункте 10. В этом случае будут применяться положения пункта 11. (13) По просьбе любого государства-участника Комитет старших должностных лиц или Постоянный комитет СБСЕ может постановить образовать миссию экс- пертов или докладчиков СБСЕ. В этом случае Комитет также определяет, будут ли применяться соответствующие положения предшествующих пунктов. (14) Государство-участник или государства-участники, обратившиеся с просьбой об образовании миссии экспертов или докладчиков, оплачивают расходы этой миссии. В случае назначения экспертов или докладчиков во исполнение решения Комитета старших должностных лиц или Постоянного комитета СБСЕ расходы оплачиваются государствами-участниками в соответствии с обычной шкалой распределения расходов. Обзор этих процедур будет произведен на Хельсинк- ской встрече в рамках дальнейших шагов СБСЕ. (15) Ничто из вышеизложенного никоим образом не затрагивает права государств- участников поднимать в рамках процесса СБСЕ любые вопросы, относящиеся к выполнению любых обязательств СБСЕ, в том числе любых обязательств, отно- сящихся к человеческому измерению СБСЕ. (16) При рассмотрении вопроса о применении изложенных в пунктах 9 и 10 или 12 процедур в отношении какого-либо лица государства-участники должны над- лежащим образом выяснить, не рассматривается ли уже дело такого лица в рам- ках какой-либо международной судебной процедуры. Прага 1992 г. (Документ о дальнейшем развитии институтов и структур СБСЕ: III. Человеческое измерение) 14. Бюро по демократическим институтам и правам человека предназначено слу- жить в качестве института СБСЕ, которому поручаются задачи, связанные с мис- сиями экспертов и докладчиков в соответствии с Документом Московского сове- щания Конференции по человеческому измерению СБСЕ. Хельсинки 1992 г. (Решения: VI. Человеческое измерение) (5) Действуя под общим руководством КСДЛ (…) БДИПЧ в качестве главного инс- титута в области человеческого измерения, будет: (5a) оказывать помощь в наблюдении за выполнением обязательств в области человеческого измерения следующим образом: выступая в качестве места проведения двусторонних встреч в соответствии с пунктом 2, а также в качестве канала для обмена информацией в соответствии

20 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Методы выполнения

с пунктом 3 раздела по Механизму человеческого измерения, как он изложен в Итоговом документе Венской встречи; (…) (5b) выступать в качестве центра информации: касающейся чрезвычайного положения, как это предусмотрено в пункте 28.10 Документа Московского совещания Конференции по человеческому измерению; (…) (7) В целях приведения Механизма человеческого измерения в соответствие с существующими структурами и институтами СБСЕ государства-участники при- нимают следующее решение: Любое из государств-участников, если оно считает это необходимым, может пре- доставить государствам-участникам через БДИПЧ, которое также может служить местом проведения двусторонних встреч в соответствии с пунктом 2, либо по дипломатическим каналам информацию о ситуациях и случаях, ставших пред- метом запросов по пунктам 1 и 2 главы Итогового документа Венской встречи, озаглавленной “Человеческое измерение СБСЕ”, или о результатах этих проце- дур. Такая информация может обсуждаться на встречах КСДЛ, совещаниях по рассмотрению выполнения, посвященных вопросам человеческого измерения, и конференциях по обзору. (…) (8) Процедуры, касающиеся покрытия расходов на миссии экспертов и доклад- чиков в рамках Механизма человеческого измерения, могут быть рассмотрены в свете накопленного опыта на следующей конференции по обзору. Выполнение Совещания по рассмотрению выполнения, посвященные вопросам челове- ческого измерения (9) Каждый год, когда не будет проводиться конференция по обзору, БДИПЧ будет организовывать у себя в штаб-квартире трехнедельное совещание всех госу- дарств-участников на уровне экспертов для обзора выполнения обязательств по СБСЕ в области человеческого измерения. Это совещание будет выполнять следу- ющие задачи: (9a) Проводить подробный обмен мнениями о выполнении обязательств в области человеческого измерения, включая обсуждение информации, представленной в соответствии с пунктом 4 раздела по Механизму человеческого измерения (…) Будапешт 1994 г. (Решения: VIII. Человеческое измерение) 5. Развивая предусмотренные в Хельсинкском документе 1992 года структуры для обзора выполнения, а также стремясь к совершенствованию выполнения обяза- тельств в области человеческого измерения, государства-участники будут исполь-

Обязательства ОБСЕ в области человеческого измерения 21 Выполнение обязательств Ч АС Т Ь I

зовать Постоянный совет для более широкого диалога по вопросам человечес- кого измерения и для возможного принятия мер в случаях невыполнения обяза- тельств. С этой целью государства-участники постановляют, что вопросы челове- ческого измерения будут регулярно рассматриваться Постоянным советом. Они будут шире использовать предоставляемые Московским механизмом возмож- ности для изучения вопросов человеческого измерения на их территории или для содействия их решению. 6. Они призывают действующего Председателя информировать Постоянный совет о поступивших сигналах относительно серьезных случаев невыполнения обязательств в области человеческого измерения, в том числе на основе сведе- ний, полученных от БДИПЧ, докладов и рекомендаций Верховного комиссара по делам национальных меньшинств (ВКНМ) или докладов руководителей миссий СБСЕ, а также информации, поступающей из соответствующего государства. C. Механизм по оказанию государствам-участникам помощи в борьбе с торговлей людьми Маастрихт 2003 г. (Решения: Решение No. 2/03: Борьба с торговлей людьми) Совет министров, (…) руководствуясь целью наращивания усилий ОБСЕ по борьбе с торговлей людьми, (…) 2. Учреждает под эгидой Постоянного совета механизм ОБСЕ для оказания госу- дарствам-участникам помощи в борьбе с торговлей людьми. Этот механизм будет состоять из двух компонентов, дополняющих деятельность друг друга: назначае- мого Действующим председательством специального представителя и специаль- ной группы в Секретариате ОБСЕ. Механизм создается с тем, чтобы: a) помогать государствам-участникам ОБСЕ выполнять обязательства и пол- ностью использовать рекомендации, предложенные в Плане действий ОБСЕ по борьбе с торговлей людьми; b) обеспечить координацию усилий ОБСЕ по борьбе с торговлей людьми, пред- принимаемых во всех трех измерениях ОБСЕ; c) укреплять координацию между соответствующими властями государств-учас- тников, а также между ОБСЕ и другими соответствующими организациями; d) повышать общественную и политическую значимость борьбы с торговлей людьми; e) вести работу во всем регионе ОБСЕ и по мере необходимости оказывать госу- дарствам-участникам, в духе сотрудничества и после консультаций с соответс- твующими властями государств-участников, о которых идет речь, содействие в их стремлении выполнять свои обязательства по борьбе с торговлей людьми;

22 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Методы выполнения

f) предоставлять и облегчать предоставление консультационной и техничес- кой помощи в законодательной сфере, а также в выработке политики, при необ- ходимости совместно с другими структурами ОБСЕ, задействованными в этой области; g) быть готовым давать консультации руководству органов законодательной, судебной и исполнительной власти в государствах-участниках и обсуждать с ними выполнение Плана действий ОБСЕ по борьбе с торговлей людьми и обяза- тельств в области борьбы с торговлей людьми. В конкретных случаях, требующих особого внимания, предпринимать подобающим образом усилия по установле- нию прямых контактов с соответствующим государством-участником и обсуж- дать вопросы предоставления консультаций и конкретной помощи, если таковая необходима; h) взаимодействовать с национальными докладчиками или другими националь- ными механизмами, созданными государствами-участниками для координа- ции и мониторинга деятельности государственных институтов, направленной на борьбу с торговлей людьми. Он будет также сотрудничать с соответствующими неправительственными организациями государств-участников. Кроме того, в рамках ОБСЕ он будет отвечать за организацию и содействие проведению сове- щаний по обмену информацией и опытом между национальными координато- рами, уполномоченными государств-участников или экспертами по борьбе с тор- говлей людьми; i) тесно сотрудничать и координировать свои действия с Бюро по демократи- ческим институтам и правам человека (БДИПЧ) и другими институтами ОБСЕ, Генеральным секретарем, соответствующими структурами Секретариата, вклю- чая Бюро Координатора деятельности ОБСЕ в области экономики и окружаю- щей среды (БКДЭОС), Группу по стратегическим вопросам полицейской деятель- ности (ГСПД), старшего советника по гендерным вопросам, а также, при необхо- димости, с операциями ОБСЕ на местах. Механизм будет опираться на эксперт- ный потенциал, имеющийся в этих структурах ОБСЕ, и обеспечивать отсутствие дублирования. По мере целесообразности он будет участвовать в работе неофи- циальной рабочей группы по гендерному равенству и борьбе с торговлей людьми; j) осуществлять сотрудничество и координацию действий с соответствующими международными участниками, такими, как Управление Организации Объеди- ненных Наций по наркотикам и преступности, Верховный комиссар Организа- ции Объединенных Наций по делам беженцев, Верховный комиссар Организа- ции Объединенных Наций по правам человека, Детский фонд Организации Объ- единенных Наций, Международная организация труда, а также Международная организация по вопросам миграции, Международный центр по развитию миг- рационной политики, Европейский союз, Совет Европы, Целевая группа по про- блеме торговли людьми в рамках Пакта о стабильности, Совет государств Бал- тийского моря, Инициатива по сотрудничеству в Юго-Восточной Европе, Интер- пол и Европол;

Обязательства ОБСЕ в области человеческого измерения 23 Выполнение обязательств Ч АС Т Ь I

3. Подтверждает, что специальный представитель будет политически подотчетен Постоянному совету, которому он будет докладывать регулярно и по мере необхо- димости. Он будет действовать в соответствии с Решением No. 8 десятой встречи Совета министров в Порту; 4. Призывает Действующее председательство назначить специальным предста- вителем видного деятеля, обладающего соответствующими знаниями и опы- том, сделав это в соответствии с процедурами ОБСЕ, после проведения с госу- дарствами-участниками через Подготовительный комитет консультаций относи- тельно его мандата. (…) 5. Поручает Постоянному совету учредить в рамках Секретариата ОБСЕ упомя- нутую выше специальную группу, в состав которой войдут нанятые по контракту или прикомандированные сотрудники. Потенциал специальной группы будет находиться в полном распоряжении специального представителя в целях эффек- тивного выполнения вышеуказанных задач; (…) D. Контртеррористическая сеть Маастрихт 2003 г. (Решения: Решение No. 6/03: Положение о контртеррористи- ческой сети ОБСЕ) Совет министров, (…) постановляет создать Контртеррористическую сеть (КТС) ОБСЕ в соответствии с Положением об этой сети, приведенным в приложении к настоящему Решению. Приложение к Решению No. 6/03: Положение о контртеррористической сети ОБСЕ Главной задачей Контртеррористической сети (КТС) ОБСЕ является содейс- твие улучшению координации контртеррористических мер и передачи информа- ции между государствами-участниками ОБСЕ. В частности, она призвана укре- пить связь между делегациями государств-участников, должностными лицами, ответственными за контртеррористическую деятельность в столицах государств, и Антитеррористическим подразделением (АТП) ОБСЕ*. Сеть облегчает своевре- менный обмен информацией о программах борьбы с терроризмом, подготовке кадров и изменениях в правовой сфере, осуществляемых по инициативе ОБСЕ и государств-участников, а также анализ полученной из открытых источни- ков информации о тенденциях в области терроризма. Основное внимание будет уделяться поддержке и дополнению работы Контртеррористического комитета

* Контртеррористический комитет Организации Объединенных Наций поддерживает формирование таких региональных сетей в целях усиления сотрудничества и координации. Секретариатом Межамери- канского комитета по борьбе с терроризмом (МКБТ) в рамках Организации американских государств уже создана региональная сеть национальных контактных пунктов, охватывающая западное полушарие. АТП с признательностью отмечает консультации и содействие, полученные от МКБТ в процессе созда- ния Контртеррористической сети ОБСЕ.

24 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Методы выполнения

Совета Безопасности Организации Объединенных Наций по выполнению резо- люции 1373 Совета Безопасности. КТС не предназначена в качестве канала для передачи разведывательной или иной чувствительной информации, а также не претендует на то, чтобы дублировать функции других международных и регио- нальных правоохранительных сетей. Каждое правительство назначит основного ответственного за поддержание связи, который будет через делегацию своего государства в ОБСЕ выполнять функции основного контактного лица при взаимодействии с АТП по вопросам борьбы с терроризмом. Основной ответственный за поддержание связи будет обеспечи- вать передачу поступающих от АТП сообщений соответствующим государс- твенным органам в столице данного государства и аналогичное своевременное информирование АТП и делегаций о соответствующих событиях в данном госу- дарстве-участнике. В интересах координации сообщения по каналам Контртер- рористической сети, направляемые АТП основному ответственному за подде- ржание связи и наоборот, будут, как правило, передаваться через делегацию соот- ветствующего государства в ОБСЕ. Обязанности АТП 1. Информировать государства-участники о возможности проведения двусторон- них, а также многосторонних мероприятий по подготовке кадров в связи с вопро- сами борьбы с терроризмом и взаимодействовать с основными ответственными за поддержание связи в целях полного использования возможностей, предостав- ляемых такими программами. 2. Координировать и облегчать контртеррористическую деятельность ОБСЕ, включая программы помощи в наращивании потенциала, семинары-практикумы по подготовке персонала и повышению готовности к чрезвычайным ситуациям, в целях эффективного использования ресурсов и во избежание дублирования. 3. Своевременно реагировать на информацию и просьбы о принятии мер, посту- пающие от основных ответственных за поддержание связи. 4. Обеспечивать, чтобы основные ответственные за поддержание связи полно- стью информировались через делегации о событиях, связанных с существен- ными вопросами борьбы с терроризмом, затрагивающими регион ОБСЕ, пос- редством регулярного распространения по электронной почте информационного бюллетеня АТП и регулярного обновления веб-страницы АТП ОБСЕ. 5. Обеспечивать через соответствующую делегацию координацию действий с основным лицом, ответственным за поддержание связи, при поездке кого либо из должностных лиц АТП ОБСЕ в то или иное государство-участник в связи с воп- росами, касающимися терроризма. Обязанности основных ответственных за поддержание связи 1. Обеспечивать доведение сообщений АТП до соответствующих государствен- ных учреждений, а также своевременную передачу ответов, адресованных АТП.

Обязательства ОБСЕ в области человеческого измерения 25 Выполнение обязательств Ч АС Т Ь I

2. Предоставлять АТП информацию о существенных событиях в стране, связан- ных с мерами по борьбе с терроризмом, включая принятие нового контртеррорис- тического законодательства, подготовку кадров и программы помощи в области борьбы с терроризмом и примеры имеющейся в странах “наилучшей практики”. 3. Сообщать информацию о семинарах, практикумах и конференциях, имеющих отношение к проблемам борьбы с терроризмом, которые могут проводиться госу- дарствами-участниками и которые открыты для участия внешних сторон. 4. Выступать в роли основного координатора при проведении семинаров, прак- тикумов и конференций ОБСЕ на темы борьбы с терроризмом, в которых прини- мает участие назначившее данного основного ответственного государство-участ- ник. 5. Выполнять от имени соответствующего государства-участника задачи коор- динации, определения приоритетности и информирования в связи с его потреб- ностями и запросами, касающиеся профессиональной подготовки и помощи в области борьбы с терроризмом, по которым ОБСЕ могла бы оказать поддержку или содействие. (…) E. Другие механизмы Прага 1992 г. (Документ о дальнейшем развитии институтов и структур СБСЕ: IV. Защита прав человека, демократии и верховенства закона) 16. В целях дальнейшего развития способности СБСЕ защищать права человека, демократию и верховенство закона мирными средствами Совет решил, что Сове- том или Комитетом старших должностных лиц могут быть, если необходимо — и без согласия соответствующего государства, в случаях явного, грубого и неис- правленного нарушения соответствующих обязтельств по СБСЕ предприняты надлежащие действия. Такие действия будут состоять из политических заявле- ний или иных политических шагов, которые будут делаться за пределами терри- тории такого государства. Настоящее решение не нарушает существующие меха- низмы СБСЕ. Хельсинки 1992 г. (Решения: I. Укрепление институтов и структур СБСЕ) (22) При решении вопросов, связанных с кризисом или конфликтом, действую- щий Председатель может по собственному усмотрению назначить личного пред- ставителя с четким и конкретным мандатом для обеспечения поддержки. Дейс- твующий Председатель будет информировать КСДЛ о намерении назначить лич- ного представителя и о его мандате. В свои отчеты Совету/КСДЛ действующий Председатель будет включать информацию о деятельности личного представи- теля, а также любые замечания или рекомендации, представленные последним. София 2004 г. (Решения: Решение No. 12/04: Толерантность и недискриминация) Совет министров,

26 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Партнеры по выполнению

(…) 5. Приветствует намерение Действующего председателя назначить в соответс- твии с Решением No. 8 встречи Совета министров в Порту трех личных предста- вителей в рамках общих усилий ОБСЕ по борьбе с дискриминацией и содействию толерантности. Расходы личных представителей будут оплачиваться из внебюд- жетных взносов.

2.3 Партнеры по выполнению

2.3.1 Правительства: органы власти и учреждения Хельсинки 1975 г. (Вопросы, относящиеся к безопасности в Европе: 1. (a) Декла- рация принципов, которыми государства-участники будут руководствоваться во взаимных отношениях; Принцип IX) IX. Сотрудничество между государствами (…) [Государства-участники] (…) подтверждают, что правительства, учреждения, орга- низации и люди могут играть соответствующую и положительную роль в содейс- твии достижению этих целей их сотрудничества. Копенгаген 1990 г. (Преамбула) [Государства-участники] признают, что сотрудничество между ними, а также активное участие отдельных лиц, групп, организаций и учреждений существенно необходимы для обеспечения постоянного продвижения к их общим целям. Москва 1991 г. (Преамбула) Государства-участники (…) заявляют о своей решимости выполнять все свои обя- зательства в области человеческого измерения и решать мирными средствами, индивидуально или совместно, любые связанные с ними вопросы на основе вза- имного уважения и сотрудничества. В этом контексте они признают, что активное участие отдельных лиц, групп, организаций и учреждений исключительно важно для обеспечения постоянного продвижения в этом направлении.

2.3.2 Правительства других стран и международные организации Хельсинки 1992 г. (Декларация встречи на высшем уровне) 7. Мы вновь подтверждаем, что руководящие принципы и общие ценности, изло- женные в хельсинкском Заключительном акте и Парижской хартии, которые воп- лощают обязательства государств друг перед другом и правительств перед сво- ими народами, не утратили своей силы. Они отражают коллективную совесть нашего сообщества. Мы признаем свою ответственность друг перед другом за их выполнение. Мы подчеркиваем демократическое право граждан требовать от своих правительств уважения этих ценностей и норм.

Обязательства ОБСЕ в области человеческого измерения 27 Выполнение обязательств Ч АС Т Ь I

Хельсинки 1992 г. (Решения: IV. Отношения с международными организациями, отношения с неучаствующими государствами, роль неправительственных орга- низаций (НПО)) (1) (…) Для того, чтобы усилия по созданию прочного мирного и демократичес- кого порядка и по регулированию процесса перемен увенчались успехом, необхо- дим более упорядоченный и содержательный вклад со стороны групп, отдельных лиц, государств и организаций, находящихся за рамками процесса СБСЕ. С этой целью государства-участники постановили следующее: Отношения с международными организациями (2) Государства-участники, вновь подтверждая провозглашенную ими привержен- ность Уставу Организации Объединенных наций, заявляют о своем понимании того факта, что СБСЕ представляет собой региональное соглашение по смыслу Главы VII Устава Организации Объединенных Наций и таким образом обеспечи- вает важную связь между безопасностью в Европе и во всем мире. (…) (3) Ссылаясь на соответствующие решения Пражского документа, государства- участники будут улучшать связи и совершенствовать практическое сотрудничес- тво с соответствующими международными организациями. (…) Отношения с неучаствующими средиземноморскими государствами (7) С учетом положений Заключительного акта и других соответствующих доку- ментов СБСЕ и в соответствии со сложившейся практикой неучаствующим сре- диземноморским государствам будет по-прежнему предлагаться вносить вклад в деятельность СБСЕ. (…) Отношения с другими неучаствующими государствами (9) (…) государства-участники намереваются углублять свое сотрудничество и развивать прочные связи с неучаствующими государствами, например с Фпо- нией, проявляющими интерес к СБСЕ, поддерживающими его принципы и цели и активно участвующими в европейском сотрудничестве в рамках соответствую- щих организаций. Лиссабон 1996 г. (Декларация о модели общей и всеобъемлющей безопасности для Европы XXI века) 5. Мы признаем, что в ОБСЕ государства подотчетны своим гражданам и несут друг перед другом ответственность за выполнение своих обязательств в рамках Организации. Стамбул 1999 г. (Хартия европейской безопасности: III. Наш общий ответ) 14. (…) Сегодня мы берем на себя обязательство предпринимать как в ОБСЕ, так и через организации, членами которых мы являемся, основанные на сотрудничес-

28 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Партнеры по выполнению

тве совместные меры, с тем, чтобы предлагать государствам-участникам помощь в улучшении соблюдения ими принципов и выполнения обязательств, принятых в рамках ОБСЕ. Мы будем укреплять существующие и разрабатывать новые инс- трументы, основанные на сотрудничестве, с тем, чтобы эффективно откликаться на просьбы государств-участников об оказании помощи. (…) Маастрихт 2003 г. (Стратегия ОБСЕ по противодействию угрозам безопасности и стабильности в XXI веке) Сотрудничество с другими международными организациями и институ- тами 52. (…) Взаимодействие ОБСЕ с другими организациями и институтами базиру- ется на Платформе безопасности, основанной на сотрудничестве. В рамках этой Платформы государства-участники обязались стремиться поддерживать согла- сованность действий на политическом и оперативном уровне между всеми струк- турами, занимающимися вопросами безопасности, как при реагировании на кон- кретные угрозы, так и при выработке мер в ответ на новые угрозы и вызовы. (…) 53. Наше сотрудничество с другими организациями и институтами на данном этапе включает политический диалог, координацию и упорядоченное сотрудни- чество по тематическим и региональным вопросам в различных частях региона ОБСЕ на базе наших общих ценностей и целей. (…) 54. ОБСЕ стремится расширить отношения со всеми организациями и инсти- тутами, занимающимися укреплением всеобъемлющей безопасности в регионе ОБСЕ (…)

2.3.3 Частные лица, правозащитники и неправительственные организации Хельсинки 1975 г. (Вопросы, относящиеся к безопасности в Европе: 1. (a) Декла- рация принципов, которыми государства-участники будут руководствоваться во взаимных отношениях; Принципы VII-IX) VII. Уважение прав человека и основных свобод, включая свободу мысли, совести, религии и убеждений (…) Государства-участники признают всеобщее значение прав человека и основных свобод (…) (…) Они подтверждают право лиц знать свои права и обязанности в этой области и поступать в соответствии с ними. (…) IX. Сотрудничество между государствами (…)

Обязательства ОБСЕ в области человеческого измерения 29 Выполнение обязательств Ч АС Т Ь I

Они подтверждают, что правительства, учреждения, организации и люди могут играть соответствующую и положительную роль в содействии достижению этих целей их сотрудничества. Мадрид 1983 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) [Государства-участники] напоминают о праве лиц знать свои права и обязан- ности в области прав человека и основных свобод и поступать в соответствии с ними, как оно воплощено в Заключительном акте, и будут принимать необходи- мые меры в своих странах в целях эффективного обеспечения этого права. Вена 1989 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) (12) [Государства-участники] выражают свою решимость гарантировать эффек- тивное осуществление прав человека и основных свобод (…) (13) В этой связи они будут: (…) (13.3) публиковать и распространять тексты Заключительного акта, мадридского Итогового документа и настоящего Документа, а также тексты любых соответс- твующих международных инструментов в области прав человека с целью обеспе- чить наличие этих документов в их полном виде, возможно более широкое озна- комление с ними и доступ к ним всех лиц в своих странах, в частности через сеть публичных библиотек; (13.4) эффективно обеспечивать право лиц знать свои права и обязанности в этой области и поступать в соответствии с ними, и с этой целью публиковать и делать доступными все законы, административные правила и процедуры, относящиеся к правам человека и основным свободам; (13.5) уважать право своих граждан, самостоятельно или совместно с другими, вносить активный вклад в развитие и защиту прав человека и основных свобод; (13.6) поощрять обсуждение в школах и других учебных заведениях вопросов раз- вития и защиты прав человека и основных свобод; (…) (13.8) обеспечивать, чтобы ни лицо, осуществляющее, выражающее намерение осуществить или стремящееся осуществить эти права и свободы, ни кто-либо из членов его семьи не были вследствие этого подвергнуты дискриминации в какой- либо форме; (13.9) обеспечивать, чтобы эффективные средства правовой защиты, а также пол- ная информация о них были доступны тем, кто заявляет, что их права человека и основные свободы были нарушены; они будут, в частности, эффективно приме- нять следующие средства правовой защиты: • право лица апеллировать к исполнительным, законодательным, судебным или административным органам;

30 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Партнеры по выполнению

• право на справедливое и публичное разбирательство в разумные сроки в неза- висимом и беспристрастном суде, включая право выдвигать юридическую аргу- ментацию и быть представленным адвокатом по своему выбору; • право быть быстро и официально уведомленным о решении, принятом по любой апелляции, включая юридические основания, на которых основывалось реше- ние. Эта информация будет предоставляться, как правило, в письменной форме и во всяком случае так, чтобы позволить лицу эффективно воспользоваться дру- гими доступными средствами правовой защиты. (…) (26) (…) С этой целью они будут уважать право лиц наблюдать за осуществлением и способствовать выполнению положений документов СБСЕ и присоединяться к другим с этой целью. Они будут облегчать прямые контакты и связи между этими лицами, организациями и учреждениями внутри государств-участников и между государствами-участниками и устранять, там где они существуют, законодатель- ные и административные препятствия, не совместимые с положениями докумен- тов СБСЕ. Они будут также принимать эффективные меры с целью облегчения доступа к информации о выполнении положений документов СБСЕ и облегчения свободного выражения взглядов по этим вопросам. Копенгаген 1990 г. [Государства-участники] признают, что сотрудничество между ними, а также активное участие отдельных лиц, групп, организаций и учреждений существенно необходимы для обеспечения постоянного продвижения к их общим целям. (…) (10) Подтверждая свое обязательство эффективно обеспечивать право отде- льного лица знать права человека и основные свободы и поступать в соответс- твии с ними и самостоятельно или совместно с другими вносить активный вклад в их развитие и защиту, государства-участники заявляют о своем обязательстве: (10.1) уважать право каждого самостоятельно или совместно с другими запраши- вать, получать и передавать свободно мнения и информацию о правах человека и основных свободах, включая право распространять и публиковать такие мнения и информацию; (10.2) уважать право каждого самостоятельно или совместно с другими изучать и обсуждать вопросы соблюдения прав человека и основных свобод и готовить и обсуждать соображения относительно улучшения защиты прав человека и более совершенных средств обеспечения соблюдения международных стандартов в области прав человека; (10.3) обеспечивать, чтобы отдельным лицам было разрешено осуществлять право на ассоциацию, включая право создавать, присоединяться и эффективно участ- вовать в деятельности неправительственных организаций, которые стремятся

Обязательства ОБСЕ в области человеческого измерения 31 Выполнение обязательств Ч АС Т Ь I

поощрять и защищать права человека и основные свободы, включая профсоюзы и группы по наблюдению за соблюдением прав человека; (10.4) разрешать членам таких групп и организаций иметь беспрепятственный доступ и поддерживать связь с подобными органами в своих странах и за их пре- делами и с международными организациями, обмениваться мнениями, подде- рживать контакты и сотрудничать с такими группами и организациями и испра- шивать, получать и использовать с целью поощрения и защиты прав человека и основных свобод добровольные финансовые взносы из национальных и междуна- родных источников, как это предусматривается законом. Париж 1990 г. (Новая эра демократии, мира и единства) Мы напоминаем о важной роли, которую неправительственные организации, религиозные и иные группы и отдельные лица играют в достижении целей СБСЕ, и будем и впредь содействовать их деятельности, направленной на осуществле- ние государствами-участниками обязательств по СБСЕ. Для выполнения своей важной задачи эти организации, группы и отдельные лица должны быть надле- жащим образом вовлечены в деятельность и новые структуры СБСЕ. Москва 1991 г. Государства-участники (…) заявляют о своей решимости выполнять все свои обя- зательства в области человеческого измерения и решать мирными средствами, индивидуально или совместно, любые связанные с ними вопросы на основе вза- имного уважения и сотрудничества. В этом контексте они признают, что активное участие отдельных лиц, групп, организаций и учреждений исключительно важно для обеспечения постоянного продвижения в этом направлении. (…) (43) Государства-участники будут признавать в качестве НПО организации, объ- явившие себя таковыми, согласно соответствующим национальным процедурам, и будут содействовать созданию условий для свободной деятельности таких орга- низаций на своих территориях; в этих целях они будут (43.1) стремиться изыскивать возможности для дальнейшего улучшения усло- вий для контактов и обменов мнениями между НПО и соответствующими нацио- нальными органами и государственными учреждениями; (43.2) стремиться содействовать посещению их стран неправительственными организациями любого государства-участника с целью наблюдения за условиями в области человеческого измерения; (43.3) приветствовать деятельность НПО, включая, в частности, проверку выпол- нения обязательств в рамках СБСЕ в области человеческого измерения; (43.4) предоставлять НПО возможность, ввиду их важной роли в рамках челове- ческого измерения СБСЕ, доводить свои мнения до их собственных правительств

32 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Партнеры по выполнению

и правительств всех других государств-участников во время будущей деятель- ности СБСЕ в области человеческого измерения. (43.5) Во время будущей деятельности СБСЕ в области человеческого измерения НПО будет предоставлена возможность распространять письменные вклады по конкретным проблемам человеческого измерения СБСЕ среди всех делегаций. (43.6) Секретариат СБСЕ в пределах имеющихся у него ресурсов будет удовлетво- рять просьбы НПО относительно предоставления им документов СБСЕ общего распространения. Хельсинки 1992 г. (Декларация встречи на высшем уровне) 7. Мы вновь подтверждаем, что руководящие принципы и общие ценности, изло- женные в хельсинкском Заключительном акте и Парижской хартии, которые воп- лощают обязательства государств друг перед другом и правительств перед сво- ими народами, не утратили своей силы. Они отражают коллективную совесть нашего сообщества. Мы признаем свою ответственность друг перед другом за их выполнение. Мы подчеркиваем демократическое право граждан требовать от своих правительств уважения этих ценностей и норм. Хельсинки 1992 г. (Решения: IV. Отношения с международными организациями, отношения с неучаствующими государствами, роль неправительственных орга- низаций (НПО)) (1) (…) Для того, чтобы усилия по созданию прочного мирного и демократичес- кого порядка и по регулированию процесса перемен увенчались успехом, необхо- дим более упорядоченный и содержательный вклад со стороны групп, отдельных лиц, государств и организаций, находящихся за рамками процесса СБСЕ. С этой целью государства-участники постановили следующее: (…) Увеличение транспарентности в деятельности СБСЕ, содействие понима- нию деятельности СБСЕ, усиление роли НПО (12) Государства-участники будут увеличивать транспарентность институтов и структур СБСЕ и обеспечивать широкое распространение информации об СБСЕ. (…) (14) Государства-участники будут создавать возможности для более активного участия неправительственных организаций в деятельности СБСЕ. (15) Они будут соответственно: • применять ко всем встречам СБСЕ ранее согласованные руководящие при- нципы, касающиеся доступа НПО на определенные встречи СБСЕ; • предоставлять НПО доступ на все пленарные заседания конференций по обзору, семинары, практикумы и встречи БДИПЧ, заседания КСДЛ в тех случаях, когда он собирается как Экономический форум, а также на совещания по рассмотре-

Обязательства ОБСЕ в области человеческого измерения 33 Выполнение обязательств Ч АС Т Ь I

нию выполнения обязательств в области прав человека и другие совещания экс- пертов. Кроме того, на каждой встрече может быть принято решение о допуске НПО на некоторые другие заседания; • давать указания директорам институтов СБСЕ и исполнительным секретарям встреч СБСЕ назначать из числа своих сотрудников "ответственного за связь с НПО"; • назначать по мере необходимости одного из сотрудников своих министерств иностранных дел и одного из членов своих делегаций на встречах СБСЕ ответс- твенными за связь с НПО; • развивать контакты и обмены мнениями между НПО и соответствующими национальными органами и правительственными учреждениями в период между встречами СБСЕ; • способствовать проведению заседаний для неофициальных обсуждений между представителями государств-участников и НПО во время встреч СБСЕ; • поощрять направление письменных представлений НПО институтам и встре- чам СБСЕ, названия которых могут сохраняться и предоставляться по запросу государствам-участникам; • оказывать поддержку НПО, организующим семинары по вопросам, связанным с СБСЕ; • уведомлять НПО через институты СБСЕ о сроках будущих встреч СБСЕ, указы- вая, в тех случаях, когда это возможно, предлагаемые для обсуждения вопросы, и предоставляя, при наличии запроса, информацию о случаях задействования механизмов СБСЕ, доведенных до сведения всех государств-участников. (16) Приведенные выше положения не будут применяться к тем лицам или орга- низациям, которые применяют насилие, а также открыто поощряют терроризм или применение насилия. (17) Государства-участники будут использовать все соответствующие средства для максимально возможно широкого распространения в рамках своих обществ знаний об СБСЕ, его принципах, обязательствах и деятельности. Стамбул 1999 г. (Хартия европейской безопасности: III. Наш общий ответ) 27. Неправительственные организации (НПО) могут играть чрезвычайно важ- ную роль в содействии утверждению прав человека, демократии и верховенс- тва закона. Они являются неотъемлемой составляющей сильного гражданского общества. Мы обязуемся расширять имеющиеся у НПО возможности вносить свой полновесный вклад в дальнейшее развитие гражданского общества и обес- печение прав человека и основных свобод.

2.3.4 Институты ОБСЕ, обладающие особой важностью для человеческого измерения Стамбул 1999 г. (Хартия европейской безопасности: III. Наш общий ответ)

34 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Партнеры по выполнению

14. (…) Мы в индивидуальном порядке подтверждаем свое желание полностью выполнять принятые нами обязательства. Мы также несем совместную ответс- твенность за то, чтобы отстаивать принципы ОБСЕ. Поэтому мы преисполнены решимости сотрудничать в рамках ОБСЕ, а также с ее институтами и предста- вителями и готовы использовать имеющиеся у ОБСЕ инструменты, средства и механизмы. Мы будем в духе солидарности и партнерства сотрудничать на посто- янной основе при рассмотрении вопросов выполнения. (…) Маастрихт 2003 г. (Стратегия ОБСЕ по противодействию угрозам безопасности и стабильности в XXI веке) Реакция ОБСЕ (…) 20. ОБСЕ будет продолжать играть активную роль в своем регионе, в полной мере используя свои институты — Бюро по демократическим институтам и правам человека (БДИПЧ), Верховного комиссара по делам национальных меньшинств (ВКНМ) и Представителя по вопросам свободы средств массовой информации (ПССМИ), — свои операции на местах и свой Секретариат. Они являются важ- ными инструментами содействия всем государствам-участникам в выполнении их обязательств, включая уважение прав человека, демократии и верховенства закона. В ходе всей соответствующей деятельности будут активно использоваться возможности укрепления сотрудничества с Парламентской ассамблеей и через нее — с национальными парламентами. A. Бюро по демократическим институтам и правам человека (БДИПЧ) I. Основной мандат, включая дополнительные общие задачи Париж 1990 г. (Новая эра демократии, мира и единства) Мы принимаем решение создать в Варшаве Бюро по свободным выборам для содействия контактам и обмену информацией о выборах в государствах-участни- ках. Париж 1990 г. (Дополнительный документ об осуществлении определенных положений, содержащихся в парижской хартии для новой Европы) G. Бюро по свободным выборам 1. Функции Бюро по свободным выборам будут заключаться в содействии контак- там и обмену инфомрацией о выборах в государствах-участниках. Таким образом Бюро будет способствовать выполнению пунктов 6, 7 и 8 Документа Копенгагенс- кого совещания Конференции по человеческому измерению СБСЕ (соответствую- щие положения содержатся в приложении I). 2. С этой целью Бюро будет: • собирать информацию, в том числе информацию, предоставляемую компетен- тными органами государств-участников, о времени проведения, процедуре и официальных результатах запланированных национальных выборов в государс-

Обязательства ОБСЕ в области человеческого измерения 35 Выполнение обязательств Ч АС Т Ь I

твах-участниках, а также сообщения групп наблюдателей за выборами и предо- ставлять их по соответствующей просьбе правительствам, парламентам и заин- тересованным частным организациям; • оказывать содействие контактам между правительствами, парламентами или частными организациями, желающими принять участие в наблюдении за выбо- рами, и компетентными органами государств, в которых должны состояться выборы; • организовывать по просьбе государств-участников семинары или другие встречи, касающиеся процедуры выборов и демократических институтов, и слу- жить местом их проведения. 3. Бюро будет принимать во внимание деятельность других учреждений в этой области и сотрудничать с ними. 4. Бюро будет выполнять и другие задачи, порученные ему Советом. (…) Приложение 1 (Копенгаген 1990 г.) (6) Государства-участники заявляют, что воля народа, выражаемая свободно и честно в ходе периодических и подлинных выборов, является основой власти и законности любого правительства. Государства-участники соответственно ува- жают право своих граждан принимать участие в управлении страной непос- редственно или через представителей, избираемых ими свободно в ходе чест- ного избирательного процесса. Они признают свою ответственность за защиту и охрану в соответствии со своими законами, своими обязательствами по меж- дународному праву в области прав человека и своими международными обяза- тельствами свободно установленный путем волеизъявления народа демократи- ческий порядок от деятельности отдельных лиц, групп или организаций, которые используют или отказываются отвергнуть терроризм или насилие, направленные на свержение этого порядка или такого порядка в другом государстве-участнике. (7) Для того, чтобы воля народа служила основой власти правительства, государс- тва-участники (7.1) проводят свободные выборы с разумной периодичностью, как это установ- лено законом; (7.2) допускают, чтобы все мандаты по крайней мере в одной палате националь- ного законодательного органа были объектом свободной состязательности кан- дидатов в ходе всенародных выборов; (7.3) гарантируют взрослым гражданам всеобщее и равное избирательное право; (7.4) обеспечивают, чтобы голосование проводилось тайно или применялась рав- ноценная процедура свободного голосования и чтобы подсчет голосов и сообще- ние о нем были честными, а официальные результаты были опубликованы;

36 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Партнеры по выполнению

(7.5) уважают право граждан добиваться политических или государственных пос- тов в личном качестве или в качестве представителей политических партий или организаций без дискриминации; (7.6) уважают право отдельных лиц и групп лиц создавать в условиях полной сво- боды свои политические партии или другие политические организации и предо- ставляют таким политическим партиям и организациям необходимые юриди- ческие гарантии, позволяющие им соревноваться друг с другом на основе равенс- тва перед законом и органами власти; (7.7) обеспечивают, чтобы закон и государственная политика допускали проведе- ние политических кампаний в атмосфере свободы и честности, в которой ника- кие административные действия, насилие или запугивание не удерживали бы партии и кандидатов от свободного изложения своих взглядов и оценок, а также не мешали бы избирателям знакомиться с ними и обсуждать их или голосовать свободно, не опасаясь наказания; (7.8) обеспечивают, чтобы не устанавливались какие-либо юридические или адми- нистративные барьеры для беспрепятственного доступа к средствам массовой информации на недискриминационной основе для всех политических группиро- вок и отдельных лиц, желающих принять участие в избирательном процессе; (7.9) обеспечивают, чтобы кандидаты, получившие необходимое число голосов, определенное законом, надлежащим образом вступали в должность и могли оста- ваться в должности до истечения срока своих полномочий или до их прекраще- ния иным образом, который регулируется законом в соответствии с демократи- ческими парламентскими и конституционными процедурами. (8) Государства-участники считают, что присутствие наблюдателей, как иностран- ных, так и национальных, может повысить авторитетность избирательного про- цесса для государств, в которых проводятся выборы. Поэтому они приглашают наблюдателей от любых других государств-участников СБСЕ и любых соответс- твующих частных учреждений и организаций, которые пожелают этого, наблю- дать за ходом их национальных выборов в объеме, допускаемом законом. Они также будут стремиться содействовать такому же доступу к избирательным про- цессам, проводимым на более низком, чем общенациональный, уровне. Такие наблюдатели будут брать на себя обязательство не вмешиваться в избирательный процесс. Прага 1992 г. (Документ о дальнейшем развитии институтов и структур СБСЕ: III. Человеческое измерение) 9. В целях расширения практического сотрудничества между государствами-учас- тниками в области человеческого измерения министры решили придать допол- нительные функции Бюро по свободным выборам, которое будет отныне имено- ваться Бюро по демократическим институтам и правам человека. 10. Под общим руководством Комитета старших должностных лиц, Бюро, в част- ности, следует:

Обязательства ОБСЕ в области человеческого измерения 37 Выполнение обязательств Ч АС Т Ь I

• организовывать краткую встречу СБСЕ в месте расположения Бюро по демок- ратическим институтам и правам человека для рассмотрения хода выполнения обязательств по человеческому измерению СБСЕ каждый год, в котором не про- ходит встреча в рамках дальнейших шагов. (…) • служить в качестве институционной основы для взаимного использования и обмена информацией о имеющейся в наличие технической помощи, опыта и национальных и международных программах, направленных на оказание помощи новым демократиям в становлении их институтов; • способствовать контактам между теми, кто предлагает такие ресурсы и теми, кто хочет их использовать; • наладить сотрудничество с Советом Европы с целью использования его базы данных о таких ресурсах и услугах; • устанавливать контакты с неправительственными организациями, действую- щими в области становления демократических институтов, с тем, чтобы дать возможность заинтересованным государствам-участникам использовать их обширные ресурсы и опыт; • содействовать сотрудничеству в области профессиональной подготовки и обу- чения по дисциплинам, имеющим отношение к демократическим институтам; • организовывать совещания и семинары с участием всех государств-участников по вопросам, связанным со становлением и возрождением работы демократи- ческих институтов, такие, как короткий семинар по свободным средствам мас- совой информации в подходящие сроки, а также один семинар по вопросам миг- рации. Такие совещания и семинары будут проведены в Варшаве, если не будет принято иного решения. 11. С тем, чтобы избежать дублирования в работе, в особенности в вышепере- численных областях, министры поручили Бюро тесно сотрудничать с другими учреждениями, действующими в области становления демократических инсти- тутов и прав человека, в частности с Советом Европы и Европейской комиссией "Демократия через закон". 12. Комитет старших должностных лиц будет на ежегодной основе рассматривать необходимость проведения совещаний и семинаров по человеческому измерению и демократическим институтам и составлять рабочую программу. (…) 14. Бюро по демократическим институтам и правам человека предназначено слу- жить в качестве института СБСЕ, которому поручаются задачи, связанные с мис- сиями экспертов и докладчиков в соответствии с Документом Московского сове- щания Конференции по человеческому измерению СБСЕ.

38 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Партнеры по выполнению

Хельсинки 1992 г. (Решения: VI. Человеческое измерение) (2) Государства-участники выражают свою твердую решимость обеспечить пол- ное уважение прав человека и основных свобод, действовать на основе закон- ности, проводить в жизнь принципы демократии и в этой связи создавать, укреп- лять и защищать демократические институты, а также развивать принципы тер- пимого отношения в масштабах всего общества. Для этого они будут расширять оперативную основу СБСЕ, в том числе путем дальнейшего укрепления БДИПЧ, с тем, чтобы позволить осуществлять более конкретный и наполненный реальным содержанием обмен информацией, идеями и озабоченностями, включая раннее предупреждение о возникновении напряженности и о потенциальных конфлик- тах. При этом они сосредоточат свое внимание на вопросах человеческого изме- рения, имеющих особое значение. Соответственно они будут постоянно следить за укреплением человеческого измерения, особенно в эпоху перемен. (…) Концептуальная основа для наблюдения за выполнением обязательств по СБСЕ и содействия сотрудничеству в области человеческого измерения (4) В целях усиления процесса выполнения обязательств по СБСЕ и наблюдения за их выполнением, а также развития прогресса в области человеческого изме- рения государства-участники принимают решение укрепить концептуальную основу их сотрудничества и для осуществления этой задачи постановляют сле- дующее: Усиление роли БДИПЧ (5) Действуя под общим руководством КСДЛ и в дополнение к своим существую- щим задачам, изложенным в Парижской хартии для новой Европы и в Пражском документе о дальнейшем развитии институтов и структур СБСЕ, БДИПЧ в качес- тве главного института в области человеческого измерения, будет: (5a) оказывать помощь в наблюдении за выполнением обязательств в области человеческого измерения следующим образом: • выступая в качестве места проведения двусторонних встреч в соответствии с пунктом 2, а также в качестве канала для обмена информацией в соответствии с пунктом 3 раздела по Механизму человеческого измерения, как он изложен в Итоговом документе Венской встречи; • получая комментарии от государств, в которых побывали имеющие отношение к человеческому измерению миссии СБСЕ, не являющиеся миссиями в рамках Механизма человеческого измерения: Бюро будет направлять доклады таких миссий, а также возможные комментарии всем государствам-участникам, имея в виду их обсуждение на следующем совещании по рассмотрению выполнения или следующей конференции по обзору; • принимая участие в миссиях или предпринимая их по поручению Совета или КСДЛ;

Обязательства ОБСЕ в области человеческого измерения 39 Выполнение обязательств Ч АС Т Ь I

(5b) выступать в качестве центра информации: • касающейся чрезвычайного положения, как это предусмотрено в пункте 28.10 Документа Московского совещания Конференции по человеческому измере- нию; • касающейся списков кандидатов и помощи, например в области переписи насе- ления, или демократии на местном и региональном уровнях, а также проведе- ния национальных семинаров по этим вопросам; (5c) оказывать помощь в других видах деятельности в области человеческого измерения, включая создание демократических институтов, следующим обра- зом: • выполняя задачи, определенные в "Программе координированной помощи недавно принятым государствам-участникам"; • организуя "семинары по проблемам демократического процесса" в ответ на про- сьбы государств-участников. В отношении этих семинаров будут применяться те же процедурные положения, что и изложенные в "Программе координирован- ной помощи недавно принятым государствам-участникам"; • содействуя в рамках ресурсов, имеющихся в его распоряжении, подготовке семинаров по просьбе одного или нескольких государств-участников; • предоставляя, при необходимости, технические средства и возможности Вер- ховному комиссару по делам национальных меньшинств; • осуществляя, при необходимости, контакты с соответствующими международ- ными и неправительственными организациями; • проводя консультации и сотрудничество с соответствующими органами Совета Европы и связанными с ним организациями, а также изучая вопрос о том, как они могут, при необходимости, способствовать деятельности БДИПЧ. БДИПЧ будет также по просьбе государств-участников предоставлять им информацию об осуществляемых в рамках Совета Европы программах, открытых для всех государств-участников. (6) Деятельность по вопросам человеческого измерения, осуществляемая БДИПЧ, может, в частности, способствовать раннему предупреждению в деле предотвра- щения конфликтов. Механизм человеческого измерения (7) В целях приведения Механизма человеческого измерения в соответствие с существующими структурами и институтами СБСЕ государства-участники при- нимают следующее решение: Любое из государств-участников, если оно считает это необходимым, может пре- доставить государствам-участникам через БДИПЧ, которое также может служить местом проведения двусторонних встреч в соответствии с пунктом 2, либо по дипломатическим каналам информацию о ситуациях и случаях, ставших пред-

40 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Партнеры по выполнению

метом запросов по пунктам 1 и 2 главы Итогового документа Венской встречи, озаглавленной “Человеческое измерение СБСЕ”, или о результатах этих проце- дур. Такая информация может обсуждаться на встречах КСДЛ, совещаниях по рассмотрению выполнения, посвященных вопросам человеческого измерения, и конференциях по обзору. (…) Выполнение Совещания по рассмотрению выполнения, посвященные вопросам челове- ческого измерения (9) Каждый год, когда не будет проводиться конференция по обзору, БДИПЧ будет организовывать у себя в штаб-квартире трехнедельное совещание всех госу- дарств-участников на уровне экспертов для обзора выполнения обязательств по СБСЕ в области человеческого измерения. Это совещание будет выполнять следу- ющие задачи: (9а) Проводить подробный обмен мнениями о выполнении обязательств в области человеческого измерения, включая обсуждение информации, представ- ленной в соответствии с пунктом 4 раздела по Механизму человеческого измере- ния, и тех аспектов докладов миссий СБСЕ, которые относятся к человеческому измерению, а также осуществлять рассмотрение путей и средств совершенство- вания процесса выполнения; (9b) проводить оценку процедур наблюдения за выполнением обязательств. (10) Совещание по рассмотрению выполнения может предложить вниманию КСДЛ меры, которые, по его мнению, необходимо принять для совершенствова- ния процесса выполнения. (11) На совещании по рассмотрению выполнения согласованный документ подго- тавливаться не будет. (12) Письменные вклады и информационные материалы будут предназначаться для общего или для ограниченного распространения в соответствии с указани- ями представившего их государства. (13) Заседания совещаний по рассмотрению выполнения будут официальными и неофициальными. Все официальные заседания будут открытыми. Кроме того, государства-участники могут, в зависимости от каждого конкретного случая, при- нять решение о том, чтобы сделать открытыми неофициальные заседания. (14) Совещания по рассмотрению выполнения будут предлагать Совету Европы, Европейской Комиссии “Демократия через закон”, Европейскому банку реконс- трукции и развития (ЕБРР), а также другим соответствующим международным организациям и учреждениям принять участие в заседаниях и внести вклад в их работу.

Обязательства ОБСЕ в области человеческого измерения 41 Выполнение обязательств Ч АС Т Ь I

(15) Неправительственные организации, обладающие соответствующим опытом в области человеческого измерения, приглашаются делать письменные представ- ления, например через БДИПЧ, совещанию по рассмотрению выполнения и, с учетом их письменных представлений, могут быть приглашены совещанием сде- лать в соответствующих случаях устные заявления по конкретным вопросам. (16) В ходе совещания по рассмотрению выполнения будут выделены две поло- вины рабочего дня, когда официальные заседания проводиться не будут, чтобы предоставить дополнительные возможности для потенциальных контактов с НПО. С этой целью в месте проведения совещания в распоряжение НПО будет предоставляться зал. Семинары по человеческому измерению СБСЕ (17) Под общим руководством КСДЛ БДИПЧ будет организовывать семинары по человеческому измерению СБСЕ, посвященные рассмотрению конкретных воп- росов, имеющих непосредственное отношение к человеческому измерению и являющихся актуальными в политическом плане. КСДЛ будет принимать еже- годную программу работы семинаров, включая их названия и сроки проведения. Повестка дня и организационные условия каждого семинара будут утверждаться КСДЛ не позднее, чем за три месяца до его начала. При этом КСДЛ будет при- нимать во внимание мнения, высказанные БДИПЧ. В отсутствие иного решения семинары будут проводиться в штаб-квартире БДИПЧ, и их продолжительность будет составлять не более одной недели. Программа работы будет составляться с учетом работы соответствующих международных организаций и учреждений. (18) Эти семинары будут организованы на принципах открытости и гибкости. Для участия в работе и внесения вклада на семинары могут быть приглашены соот- ветствующие международные организации и институты, а также НПО, имею- щие соответствующий опыт. Независимые эксперты, участвующие в работе семи- нара в качестве членов национальных делегаций, также будут иметь возможность выступить в личном качестве. (19) Заседания на семинарах СБСЕ будут официальными и неофициальными. Все официальные заседания будут открытыми. Кроме того, государства-участники могут, в зависимости от каждого конкретного случая, принять решение о том, чтобы сделать открытыми неофициальные заседания. (20) Согласованного документа либо программ дальнейших действий на семина- рах СБСЕ вырабатываться не будет. (21) Вклады независимых экспертов будут предназначаться для общего распро- странения. Рим 1993 г. (Решения: IV. Человеческое измерение) (3) Процесс политических консультаций и миссии СБСЕ (…)

42 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Партнеры по выполнению

• В мандатах миссий СБСЕ, а также при дальнейшей деятельности на основе докладов миссий будет уделяться большее внимание вопросам человеческого измерения. С этой целью будет повышена роль БДИПЧ в подготовке миссий СБСЕ, в частности в том, что касается предоставления миссиям информации и рекомендаций на основе накопленных БДИПЧ знаний и опыта. (…) 4. Бюро по демократическим институтам и правам человека Министры приняли решение об усилении роли и активизации деятельности БДИПЧ. В частности, БДИПЧ в соответствии со своим мандатом активизирует деятельность в следующих областях: • создание расширенного банка данных об экспертах в областях, связанных с человеческим измерением. К государствам-участникам и неправительственным организациям обращается просьба информировать БДИПЧ о наличии экспер- тов в областях, связанных с человеческим измерением; (…) • углубление сотрудничества с соответствующими международными организаци- ями в целях координации деятельности и определения возможных областей для совместных усилий; • получение информации от НПО, обладающих соответствующим опытом в области человеческого измерения; • выполнение роли контактного пункта для получения информации, предостав- ляемой государствами-участниками в соответствии с обязательствами в рамках СБСЕ; • распространение общей информации в области человеческого измерения и меж- дународного гуманитарного права. Будапешт 1994 г. (Решения: VIII. Человеческое измерение) 8. БДИПЧ, являющееся основным институтом в области человеческого измере- ния, будет по согласованию с действующим Председателем участвовать в качес- тве консультанта в обсуждениях, ведущихся в Руководящем совете и Постоянном совете, докладывая через регулярные промежутки времени о своей деятельности и предоставляя информацию по вопросам выполнения. Оно будет предоставлять вспомогательные материалы для ежегодного обзора выполнения и при необхо- димости давать разъяснения по полученной информации или дополнять ее. На основе тесных консультаций с действующим Председателем директор БДИПЧ может вносить предложения о последующих мерах. 9. Государства-участники признают необходимость расширения сотрудничес- тва через БДИПЧ с другими международными организациями и институтами, занимающимися вопросами человеческого измерения, в том числе с Верховным комиссаром ООН по правам человека, в целях обмена информацией, включая

Обязательства ОБСЕ в области человеческого измерения 43 Выполнение обязательств Ч АС Т Ь I

доклады, а также дальнейшей разработки ориентированных на будущее меропри- ятий, таких, как те, о которых говорится в настоящем документе. 10. Государства-участники постановляют: (…) • возложить на БДИПЧ функции центра для обмена информацией, касающейся проблем средств массовой информации в регионе; они также выражают пожела- ние, чтобы правительства, журналисты и НПО предоставляли БДИПЧ данные о положении средств информации. 11. Мандаты миссий СБСЕ будут утверждаться после консультаций с БДИПЧ, которое будет также вносить свой вклад в осуществление определенных Посто- янным советом дальнейших шагов на основе докладов миссий. При наборе пер- сонала для миссий СБСЕ следует использовать имеющиеся в БДИПЧ сведения об экспертах по вопросам человеческого измерения. Эти миссии будут, кроме того, поручать одному из своих членов поддерживать связь с БДИПЧ и с НПО по воп- росам человеческого измерения. (…) 13. Положения, содержащиеся в главе настоящего Документа, посвященной чело- веческому измерению, никоим образом не изменяют ни мандата БДИПЧ, ни ман- дата ВКНМ. Семинары БДИПЧ 14. Число крупномасштабных семинаров по человеческому измерению будет сокращено в среднем до двух в год. В центре внимания на этих семинарах будут темы, представляющие самый широкий интерес. Больший упор будет сделан на региональные семинары. Когда это целесообразно, они будут проводиться в качестве составной части Программы координирован- ной помощи. Следует стремиться к обеспечению участия в этих семинарах всех государств того региона, в котором они проводятся. (…) 43. Они договорились о необходимости дальнейшего развития возможностей БДИПЧ по оказанию высококвалифицированной экспертной поддержки в воп- росах человеческого измерения в соответствии с Программой координирован- ной помощи. Стремясь откликнуться на просьбы заинтересованных новых неза- висимых государств о предоставлении консультационных услуг по всем аспек- там демократизации, они решили, что полезным дополнением к деятельности БДИПЧ было бы использование экспертов по особым поручениям в рамках Про- граммы координированной помощи.

44 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Партнеры по выполнению

II. Дополнительные задачи, относящиеся к выборам Рим 1993 г. (Решения: IV. Человеческое измерение) 4. Бюро по демократическим институтам и правам человека Министры приняли решение об усилении роли и активизации деятельности БДИПЧ. В частности, БДИПЧ в соответствии со своим мандатом активизирует деятельность в следующих областях: (…) • укрепление роли БДИПЧ во всеобъемлющем наблюдении за процессом выбо- ров; (…) Будапешт 1994 г. (Решения: VIII. Человеческое измерение) 12. БДИПЧ будет играть более значительную роль в наблюдении за процессом выборов до их начала, в ходе них и по их окончании. В этом контексте БДИПЧ следует оценивать наличие условий для свободной и независимой деятельности средств массовой информации. Государства-участники предлагают различным организациям, осуществляю- щим наблюдение за процессом выборов, улучшать координацию своих действий и поручают БДИПЧ проводить консультации со всеми соответствующими органи- зациями, с тем, чтобы заложить основу для координации в этой области. Кроме того, БДИПЧ в целях совершенствования подготовки и процедур наблю- дения за процессом выборов составит пособие для наблюдателей за выборами и будет вести постоянно обновляемый календарь предстоящих выборов. Маастрихт 2003 г. (Решения: Решение No. 5/03: Выборы) Совет министров, (…) поручает БДИПЧ рассмотреть пути повышения эффективности своего содейс- твия государствам-участникам в принятии мер по рекомендациям, сформулиро- ванным в докладах БДИПЧ о наблюдении за выборами, и информировать Посто- янный совет о ходе выполнения этой задачи; (…) III. Контактный пункт БДИПЧ по вопросам рома и синти Будапешт 1994 г. (Решения: VIII. Человеческое измерение) 23. Государства-участники постановляют создать в БДИПЧ пункт для контак- тов по вопросам, касающимся народности рома и синти (цыган). БДИПЧ будет поручено:

Обязательства ОБСЕ в области человеческого измерения 45 Выполнение обязательств Ч АС Т Ь I

• действовать в качестве центра для обмена информацией по вопросам, связан- ным с рома и синти (цыганами), включая информацию о выполнении обяза- тельств, касающихся рома и синти (цыган); • облегчать контакты по проблемам народности рома и синти (цыган) между госу- дарствами участниками, международными организациями и институтами, а также НПО; • поддерживать и развивать контакты по этим вопросам между институтами СБСЕ и другими международными организациями и институтами. Для выполнения этих задач БДИПЧ будет в полной мере использовать имеющи- еся ресурсы. В этом контексте они приветствуют заявление некоторых организа- ций, представляющих рома и синти (цыган), об их намерении внести доброволь- ные взносы. 24. Государства-участники приветствуют мероприятия, проводимые другими международными организациями и институтами, в частности Советом Европы, по вопросам, касающимся рома и синти (цыган). Осло 1998 г. (Решения: Решение о повышении потенциала ОБСЕ в вопросах, каса- ющихся рома и синти) Совет министров, имея в виду действующие в рамках ОБСЕ обязательства в отношении рома и синти и напоминая о принятом Будапештской встречей на высшем уровне решении создать в БДИПЧ пункт для контактов по вопросам, касающимся народности рома и синти (цыган), 1. Принимает решение повысить потенциал ОБСЕ в этих вопросах путем укреп- ления существующего пункта БДИПЧ для контактов по вопросам, касающимся народности рома и синти. Приоритетными в его деятельности будут следующие задачи: • укрепление взаимодействия ОБСЕ с правительствами государств-участников, представителями общин рома и синти, а также с международными организаци- ями, инициативами и НПО, имеющими отношение к проблемам рома и синти, и в частности дальнейшего взаимно усиливающего сотрудничества с координа- тором Совета Европы по вопросам народности рома, с тем, чтобы избежать дуб- лирования усилий — в том числе путем налаживания регулярных консультаций с этими организациями, инициативами и НПО, направленных на достижение дополнительной отдачи от объединения усилий, а также выработку общих под- ходов в целях содействия полной социальной интеграции общин рома и синти в странах, где они проживают, при сохранении их самобытности; • наращивание сотрудничества между институтами ОБСЕ и ее миссиями/при- сутствиями на местах по вопросам рома и синти там, где это уместно;

46 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Партнеры по выполнению

• разработка — на базе вкладов государств-участников, институтов ОБСЕ, и в час- тности ВКНМ, общин рома и синти, НПО, международных организаций и дру- гих институтов и инициатив — программы работы, которая должна включать, среди прочего, организацию семинаров, практикумов и центров обмена инфор- мацией; • сбор информации от государств-участников по законодательным и другим мерам, затрагивающим положение рома и синти, на предмет предоставления ее в распоряжение сообщества ОБСЕ, равно как и других заинтересованных меж- дународных организаций, а также подготовки дополнительных докладов о поло- жении рома и синти в регионе ОБСЕ. 2. Также принимает решение, что пункт для контактов должен заниматься исклю- чительно вопросами, касающимися рома и синти. Маастрихт 2003 г. (Решения: Приложение к Решению No. 2/03: Борьба с торгов- лей людьми: План действий ОБСЕ по борьбе с торговлей людьми) IV. Предупреждение торговли людьми (…) Действия институтов и органов ОБСЕ 6. Сбор данных и исследования (…) 6.2 Поручить пункту БДИПЧ для контактов по вопросам, касающимся рома и синти, продолжать сбор данных о торговле людьми, и прежде всего детьми, а также о ее последствиях для общин рома и синти. Маастрихт 2003 г. (Решения: Приложение к Решению No. 3/03: План действий по улучшению положения рома и синти в регионе ОБСЕ) III. Борьба с расизмом и дискриминацией Законодательство и правоохранительная деятельность Рекомендуемые действия государств-участников: (…) 23. БДИПЧ/контактный пункт по вопросам рома и синти (КПРС) будет содейс- твовать улучшению отношений между неправительственными организациями (НПО) рома и синти и государствами-участниками. 24. БДИПЧ-КПРС будет выполнять функцию координационного центра в связи с реализацией инициатив, с которыми выступают государства-участники, и облег- чать обмен информацией о наилучшей практике. 25. БДИПЧ-КПРС будет — в тесном взаимодействии с государствами-участни- ками, общинами рома и синти и, там, где это возможно, другими международ- ными организациями и при полном уважении законов о защите личных данных

Обязательства ОБСЕ в области человеческого измерения 47 Выполнение обязательств Ч АС Т Ь I

— осуществлять сбор документации для целей разработки более адресной поли- тики. Полиция (…) Рекомендуемые действия институтов и структур ОБСЕ: (…) 34. БДИПЧ-КПРС и Группа по стратегическим вопросам полицейской деятель- ности подготовят в рамках своих соответствующих мандатов сборник “лучшей практики” полицейских органов в регионе ОБСЕ, посвященный полицейской деятельности применительно к общинам рома и синти. 35. ВКНМ, БДИПЧ-КПРС и Группа по стратегическим вопросам полицейской деятельности будут оказывать государствам-участникам помощь в разработке кодексов поведения, призванных не допустить утверждения расовых стереотипов и улучшить межэтнические отношения. Средства массовой информации (…) Рекомендуемые действия институтов и структур ОБСЕ: (…) 41. БДИПЧ-КПРС и ПССМИ будут организовывать “круглые столы” с участием журналистов, посвященные образу рома и синти в общественном сознании. (…) IV. Решение социально-экономических проблем (…) Жилье и условия жизни (…) Рекомендуемые действия институтов и структур ОБСЕ: 47. Представляется целесообразным, чтобы БДИПЧ-КПРС и Бюро Координатора деятельности ОБСЕ в области экономики и окружающей среды (БКДЭОС) взяли на себя более весомую роль в содействии получению информации и доступа к ресурсам, выделяемым иностранными донорами на конкретные проекты по социально-экономическому развитию цыганских общин, — особенно если они предложены объединениями рома и синти.

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Безработица и экономические проблемы (…) Рекомендуемые действия институтов и структур ОБСЕ: (…) 54. По просьбе государств-участников БДИПЧ-КПРС и БКДЭОС будут оказы- вать помощь в развитии у рома и синти профессиональных навыков, необходи- мых для работы по найму и в качестве предпринимателей, путем организации в государствах-участниках программ профессиональной подготовки и перепод- готовки. Успешные проекты, особенно касающиеся обучения предприниматель- ским навыкам и развития малых и средних предприятий (МСП) (например, про- грамма семинаров для молодых предпринимателей), могли бы быть адаптиро- ваны к нуждам рома и синти. (…) (…) 56. БДИПЧ-КПРС и БКДЭОС будут использовать результаты работы ПРООН и других учреждений по изучению потребностей рома и синти в целях поддержки политики, учитывающей масштабы и характер их особых потребностей в каждом государстве-участнике. 57. Координируя свои действия с соответствующими международными органи- зациями (в частности, ПРООН и Всемирным банком) БДИПЧ-КПРС и БКДЭОС рассмотрят способы расширения доступа рома и синти к обычным програм- мам обучения. Могут быть организованы семинары-практикумы или дискус- сии за “круглым столом”, ориентированные на потребности рома и синти, с целью информирования и просвещения членов их общин в том, что касается социально- экономических прав личности и прав предпринимателей. Медицинское обслуживание (…) Рекомендуемые действия институтов и структур ОБСЕ: (…) 65. БДИПЧ-КПРС и, в соответствующих случаях, другие институты и структуры ОБСЕ, включая операции ОБСЕ на местах, будут оказывать содействие государс- твам-участникам, предпринимающим информационно-просветительские иници- ативы, которые должны помочь рома и синти в полной мере использовать обыч- ные услуги медицинских учреждений. Они будут, в частности, заниматься сбо- ром, подготовкой и распространением соответствующей информации о надлежа- щей практике. 66. БДИПЧ-КПРС будет уделять особое внимание обеспечению доступа рома и синти к программам, нацеленным на предупреждение и/или лечение наркомании и наркотической зависимости, а также СПИД и связанных с ним заболеваний.

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(…) VI. Расширение участия в общественно-политической жизни (…) Рекомендуемые действия институтов и структур ОБСЕ: (…) 100. БДИПЧ-КПРС должен оказывать помощь в организации подготовки кадров для цыганских НПО, а также самими этими НПО, включая организации СМИ, в интересах цыганских общин в целом по тематике, касающейся демократических процессов и участия граждан. (…) 105. БДИПЧ-КПРС, а также, в соответствующих случаях, другие институты и структуры ОБСЕ, включая операции ОБСЕ на местах, будут разрабатывать про- граммы, поощряющие выдвижение кандидатур рома и синти в выборные органы, либо будут находить нестандартные подходы, обеспечивающие участие предста- вителей рома и синти в процессах принятия подходы на национальном и мест- ном уровне. (…) VII. Рома и синти в кризисных и послекризисных ситуациях (…) Рекомендуемые действия институтов и структур ОБСЕ: (…) 114. В соответствии со своим мандатом БДИПЧ-КПРС призван эффективно реа- гировать на кризисные ситуации, в том числе путем сотрудничества с правитель- ствами соответствующих стран, межправительственными органами и междуна- родными организациями, в частности с УВКБ ООН, в целях защиты подвергаю- щихся риску цыганских общин. 115. БДИПЧ-КПРС будет повышать осведомленность государственных должност- ных лиц, журналистов и других сторон о положении рома и синти в районах кри- зисов или конфликтов. (…) VIII. Углубление сотрудничества и координации действий с другими между- народными организациями и НПО 118. БДИПЧ-КПРС будет и впредь активно участвовать в неофициальной контак- тной группе представителей межправительственных организацийпо делам народности рома*. * В неофициальной контактной группе представителей межправительственных организаций по де- лам народности рома участвуют ОБСЕ/БДИПЧ, Совет Европы, Европейская комиссия и Европейский союз.

50 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Партнеры по выполнению

(…) 121. БДИПЧ-КПРС будет стремиться к консолидации “Международной контак- тной группы по делам народности рома”** и будет вносить дальнейший вклад в инициативу Совета Европы, касающуюся возможного создания Европейского форума по делам цыган и странствующих лиц. 122. БДИПЧ-КПРС будет предоставлять информацию и координационные услуги соответствующим национальным и международным институтам и будет облег- чать их диалог между собой и с цыганскими НПО. 123. БДИПЧ-КПРС будет стремиться развивать отношения с организациями рома и синти и помогать им координировать свои усилия и ресурсы как внутри отдельных государств, так и на трансграничном уровне и в полной мере исполь- зовать возможности, которые открывает уже проводимая национальная и между- народная политика, затрагивающая рома и синти. 124. БДИПЧ-КПРС будет опираться на опыт и вклад существующих проектов в области мониторинга, разработанных другими международными организаци- ями. IX. Контактный пункт БДИПЧ по вопросам рома и синти 125. При необходимости БДИПЧ-КПРС будет облегчать обмен информацией между государствами-участниками ОБСЕ, разработавшими или стремящимися улучшить государственную политику в отношении рома и синти. 126. По соответствующим запросам БДИПЧ-КПРС будет консультировать госу- дарства-участники относительно будущей политики в отношении рома и синти и будет стимулировать дискуссии между правительствами и цыганскими НПО. 127. БДИПЧ-КПРС будет поддерживать усилия по повышению потенциала цыган- ских НПО. 128. БДИПЧ-КПРС создаст базу данных о лучшей практике, имеющейся в госу- дарствах-участниках ОБСЕ. 129. БДИПЧ-КПРС следует проявлять инициативу в том, что касается анализа мер, предпринимаемых государствами-участниками, а также конкретных ситуа- ций и инцидентов, затрагивающих рома и синти. В этих целях КПРС будет уста- навливать и развивать прямые контакты с государствами-участниками и предла- гать им рекомендации и заключения. 130. Правительства соответствующих стран будут сотрудничать с БДИПЧ-КПРС в нахождении эффективных решений в кризисных ситуациях. 131. БДИПЧ-КПРС будет предоставлять общинам рома и синти дополнительную информацию о ресурсах и деятельности ОБСЕ.

** Международная контактная группа по делам народности рома была учреждена в октябре 2000 года по инициативе контактного пункта БДИПЧ по вопросам рома и синти. В Контактную группу входят представители Международного союза рома, Национального конгресса рома, выборные представители народности рома, эксперты-цыгане и БДИПЧ-КПРС.

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132. Во взаимодействии с соответствующими институтами и структурами ОБСЕ БДИПЧ будет разрабатывать соответствующие меры, направленные на устране- ние первопричин торговли людьми, особенно детьми, и повышать среди цыганс- кого населения осведомленность о ее последствиях. (…) X. Выполнение: обзор и оценка (…) 138. БДИПЧ-КПРС распространит информацию о настоящем Плане среди цыган- ского населения и организаций рома и синти, а также направит ее другим между- народным организациям. IV. Дополнительные задачи, относящиеся к толерантности и недискриминации, включая вопросы рома и синти Будапешт 1994 г. (Решения: VIII. Человеческое измерение) 25. Государства-участники осуждают проявления нетерпимости, особенно — агрессивного национализма, расизма, шовинизма, ксенофобии и антисемитизма, и будут оказывать дальнейшее содействие эффективным мерам, направленным на их искоренение. Они предлагают БДИПЧ и впредь уделять особое внимание этим явлениям, собирая информацию об их различных проявлениях в государс- твах участниках. (…) Бухарест 2001 г. (Решения: Решение No. 5) Совет министров, (…) призывает институты ОБСЕ, в частности БДИПЧ, Верховного комиссара по делам национальных меньшинств и Представителя по вопросам свободы средств массовой информации уделять повышенное проявлениям агрессивного национа- лизма, расизма, шовинизма, ксенофобии, антисемитизма и воинствующего экс- тремизма, борьбе с нетерпимостью и дискриминацией по признаку расового или этнического происхождения, религиозных, политических или иных убеждений, а также содействию уважению верховенства закона, демократических ценностей, прав человека и основных свобод, включая свободу выражения мнений, свободу мысли, совести, религии или убеждений. Маастрихт 2003 г. (Решения: Приложение к Решению No. 3/03: План действий по улучшению положения рома и синти в регионе ОБСЕ) III. Борьба с расизмом и дискриминацией (…) Законодательство и правоохранительная деятельность (…)

52 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Партнеры по выполнению

Рекомендуемые действия институтов и структур ОБСЕ: 20. БДИПЧ и, в соответствующих случаях, другие институты и структуры ОБСЕ, включая операции ОБСЕ на местах, будут оказывать государствам-участникам по их просьбе помощь в разработке антидискриминационного законодательства, а также в учреждении органов по борьбе с дискриминацией. (…) 22. БДИПЧ будет по запросу давать рекомендации о том, каким образом можно задействовать существующие в государстве-участнике механизмы, такие, как бюро омбудсмена, комиссии по борьбе с дискриминацией, дисциплинарные комиссии полицейских ведомств и другие соответствующие органы, в целях ослабления напряженности между рома и синти и нецыганским населением. (…) Полиция (…) Рекомендуемые действия институтов и структур ОБСЕ: 33. Группа по стратегическим вопросам полицейской деятельности в составе Сек- ретариата, а также БДИПЧ будут оказывать государствам-участникам помощь в разработке программ и мер укрепления доверия, например, в области работы полиции с населением, призванных улучшать отношения между рома и синти и полицией, особенно на местном уровне. (…) Средства массовой информации (…) Рекомендуемые действия институтов и структур ОБСЕ: 39. Во взаимодействии с БДИПЧ и соответствующими международными орга- низациями Представителю по вопросам свободы средств массовой информа- ции (ПССМИ) следует рассмотреть вопрос о возможном вкладе ОБСЕ в создание Европейского цыганского радио с вещанием на всю Европу. БДИПЧ и ПССМИ следует организовывать общественные диспуты, кампании против дискримина- ции и совместные учебные программы с участием работников средств массовой информации и для них. (…) IV. Решение социально-экономических проблем (…) Медицинское обслуживание (…)

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Рекомендуемые действия институтов и структур ОБСЕ: 64. БДИПЧ во взаимодействии с другими международными организациями и НПО будет использовать имеющиеся данные исследований для выявления соци- ально-экономических, политических и культурных факторов, влияющих на состояние здоровья тех или иных цыганских общин, и будет консультировать государства-участники по вопросам реализации программ в области здравоохра- нения, направленных на удовлетворение выявленных потребностей. (…) VI. Расширение участия в общественно-политической жизни (…) Рекомендуемые действия институтов и структур ОБСЕ: 99. БДИПЧ и, где это целесообразно, другие институты и структуры ОБСЕ, вклю- чая операции ОБСЕ на местах, будут разрабатывать программы, направленные на обеспечение регистрации, которая необходима для полноправного участия в политической деятельности. (…) 101. БДИПЧ, а также, где это целесообразно, другие институты и структуры ОБСЕ, включая операции ОБСЕ на местах, будут разрабатывать и осуществлять просве- тительские программы для электората и программы регистрации избирателей. 102. БДИПЧ будет выступать в роли катализатора обмена информацией и пере- довым опытом между государствами-участниками и с другими международными организациями. 103. БДИПЧ будет продолжать и укреплять практику изучения участия цыган в голосовании и избирательных процессах, а также будет продолжать практику включения экспертов-цыган в состав своих миссий по наблюдению в регионе ОБСЕ. (…) 106. БДИПЧ будет уделять особое внимание деятельности, направленной на рас- ширение доступа цыганских женщин ко всем сферам общественно-политической жизни. VII. Рома и синти в кризисных и послекризисных ситуациях (…) Рекомендуемые действия институтов и структур ОБСЕ: 113. БДИПЧ будет использовать свои специфические функции в вопросах предо- твращения конфликтов и выявления потенциально кризисных областей, требую- щих вмешательства на раннем этапе. (…)

54 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Партнеры по выполнению

116. БДИПЧ будет проявлять инициативу в деле анализа мер, предпринимаемых государствами-участниками в отношении рома и синти, и предлагать свои реко- мендации в интересах более успешного преодоления элементов напряженности в конкретных местных условиях, которые, если этого не предотвратить, могут перерасти в ситуации открытого конфликта. Маастрихт 2003 г. (Решения: Решение No. 4/03: Толерантность и недискримина- ция) Совет министров, (…) 6. Побуждает все государства-участники собирать и хранить надежную инфор- мацию и статистические данные о преступлениях на почве ненависти, вклю- чая формы воинствующего проявления расизма, ксенофобии, дискриминации и антисемитизма, как это обсуждалось и было рекомендовано в ходе вышеупомя- нутых конференций. Признавая важное значение законодательства для борьбы с преступлениями на почве ненависти, государства-участники будут информи- ровать БДИПЧ об имеющемся законодательстве относительно преступлений, мотивированных нетерпимостью и дискриминацией, и в соответствующих слу- чаях обращаться к БДИПЧ за помощью в разработке и пересмотре такого законо- дательства; 7. Поручает БДИПЧ на основе всестороннего сотрудничества, в частности, с Комитетом Организации Объединенных Наций по ликвидации расовой дискри- минации (ЮНСЕРД), Европейской комиссией по борьбе против расизма и нетер- пимости (ЭКРН) и Европейским мониторинговым центром по вопросам расизма и ксенофобии (ЕКЦРК), а также с соответствующими НПО выполнять функ- ции центра по сбору информации и статистики, накапливаемых государствами- участниками, и регулярно представлять по этим вопросам доклады, в том числе используя формат Совещания по рассмотрению выполнения, посвященного человеческому измерению, в качестве основы для определения первоочередных задач дальнейшей работы. БДИПЧ будет, в частности, способствовать внедрению наилучшей практики и распространять информацию об уроках борьбы с нетер- пимостью и дискриминацией; (…) София 2004 г. (Решения: Приложение к Решению No. 12/04: Толерантность и недискриминация; Решение Постоянного совета No. 607: Борьба с антисемитиз- мом) Постоянный совет (…) постановляет следующее: (…)

Обязательства ОБСЕ в области человеческого измерения 55 Выполнение обязательств Ч АС Т Ь I

2. Поручить БДИПЧ: • на основе всестороннего сотрудничества с другими институтами ОБСЕ, а также с Комитетом ООН по ликвидации расовой дискриминации (ЮНСЕРД), Евро- пейской комиссией по борьбе против расизма и нетерпимости (ЕКРН), Европей- ским мониторинговым центром по вопросам расизма и ксенофобии (ЕМЦРК) и другими соответствующими международными институтами и НПО внима- тельно отслеживать инциденты антисемитского характера в регионе ОБСЕ, используя при этом всю имеющуюся и заслуживающую доверия информацию; • докладывать о своих выводах Постоянному совету и Совещанию по рассмот- рению выполнения, посвященному вопросам человеческого измерения, а также информировать о них общественность. Такие доклады должны также прини- маться во внимание при определении приоритетных направлений работы ОБСЕ по проблеме нетерпимости; • систематически собирать и распространять в масштабах региона ОБСЕ инфор- мацию о лучшей практике предупреждения антисемитизма и реагирования на него, а также представлять государствам-участникам по их просьбе рекоменда- ции в связи с их усилиями по борьбе с антисемитизмом. (…) София 2004 г. (Решения: Приложение к Решению No. 12/04: Толерантность и недискриминация; Решение Постоянного совета No. 621: Толерантность и борьба с расизмом, ксенофобией и дискриминацией) Постоянный совет, (…) с целью наращивания наших общих усилий в борьбе с проявлениями нетерпи- мости во всем регионе ОБСЕ, постановляет следующее: (…) 2. БДИПЧ поручается: • на основе всестороннего сотрудничества с другими институтами ОБСЕ, а также с Комитетом ООН по ликвидации расовой дискриминации (ЮНСЕРД), Управ- лением Верховного комиссара Организации Объединенных Наций по правам человека (УВКПЧ), Европейской комиссией по борьбе против расизма и нетер- пимости (ЕКРН), Европейским мониторинговым центром по вопросам расизма и ксенофобии (ЕКЦРК) и другими соответствующими международными инсти- тутами и НПО внимательно отслеживать инциденты, мотивированные расиз- мом, ксенофобией или связанной с ними нетерпимостью, в том числе в отноше- нии мусульман, и антисемитизмом в регионе ОБСЕ, используя при этом имею- щуюся и заслуживающую доверия информацию;

56 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Партнеры по выполнению

• докладывать о своих выводах Постоянному совету и Совещанию по рассмот- рению выполнения, посвященному человеческому измерению, а также инфор- мировать о них общественность. Такие доклады должны также приниматься во внимание при определении приоритетных направлений работы ОБСЕ по про- блеме нетерпимости; • систематически собирать и распространять в масштабах региона ОБСЕ инфор- мацию о лучшей практике предупреждения расизма, ксенофобии и дискрими- нации и реагирования на них, а также представлять государствам-участникам по их просьбе рекомендации в связи с их усилиями по борьбе с расизмом, ксе- нофобией и дискриминацией; • поддерживать способность гражданского общества противодействовать расизму, ксенофобии, дискриминации и связанной с ними нетерпимости, в том числе в отношении мусульман, а также антисемитизму и налаживать партнерс- кие связи в этих целях; (…) V. Дополнительные задачи, относящиеся к равенству между мужчинами и женщинами София 2004 г. (Решения: Приложение к Решению No. 14/04: План действий ОБСЕ 2004 года по поддержке гендерного равенства) V. Поддержка выполнения государствами-участниками ОБСЕ соответству- ющих обязательств по поддержке равенства между женщинами и мужчи- нами (…) 44. Приоритеты (a) Разработка проектов в государствах ОБСЕ, где отсутствуют миссии • в странах, где нет миссий, БДИПЧ будет осуществлять подбор проектов для поддержки мер в таких областях, как недопущение насилия в отношении жен- щин, содействие участию женщин в общественной, политической и экономи- ческой жизни и поддержка систематического учета гендерной проблематики на национальном уровне. (b) Обеспечение недискриминационного характера правовых и политических систем • БДИПЧ в сотрудничестве с другими международными организациями и соот- ветствующими национальными органами и институтами будет оказывать госу- дарствам-участникам ОБСЕ помощь в соблюдении положений международно- правовых документов, направленных на поддержку гендерного равенства и прав женщин, а также в пересмотре законодательства на предмет обеспечения соответствующих правовых гарантий поддержки гендерного равенства в соот- ветствии с обязательствами, принятыми в рамках ОБСЕ, и другими обязательс- твами;

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• БДИПЧ будет оказывать помощь в разработке и осуществлении конкретных программ и мероприятий по поддержке прав женщин, повышению роли жен- щин на всех уровнях принятия решений и содействию равенству между женщи- нами и мужчинами повсюду в регионе ОБСЕ, в частности посредством образо- вания и повышения осведомленности о гендерных проблемах; • БДИПЧ будет содействовать осуществлению и оценке национальных стратегий и планов действий, предусматривающих меры по поддержке гендерного равенс- тва и систематическому учету гендерной проблематики; (…) (d) Обеспечение равных возможностей для участия женщин в политической и общественной жизни • БДИПЧ будет содействовать государствам-участникам в разработке эффек- тивных мер по обеспечению равноправного участия женщин в демократичес- ких процессах и оказывать помощь в разработке оптимальной практики их осу- ществления; • БДИПЧ и операции ОБСЕ на местах будут по мере необходимости содейс- твовать наращиванию на местах экспертного и иного потенциала в гендерной области, а также формированию сетей, объединяющих лидеров местной обще- ственности и политических деятелей; • БДИПЧ будет продолжать оказывать государствам-участникам содействие в вовлечении женщин в политическую жизнь. В рамках своих миссий по наблюде- нию за выборами оно будет и впредь отслеживать участие женщин в электораль- ных процессах и представлять информацию на эту тему. Кроме того, БДИПЧ будет по мере возможности обеспечивать подготовку и публикацию докладов, специально посвященных анализу положения женщин в контексте электораль- ных процессов; (…) (g) Создание национальных механизмов для улучшения положения женщин • БДИПЧ будет и впредь по мере необходимости предоставлять "ноу-хау" и ока- зывать поддержку в области построения демократических институтов для обес- печения гендерного равенства, таких, как бюро омбудсменов местного и нацио- нального уровня; • БДИПЧ будет облегчать диалог и сотрудничество между гражданским обще- ством, средствами массовой информации и государством по вопросам учета гендерной проблематики. VI. Дополнительные задачи, относящиеся к борьбе с торговлей людьми Вена 2000 г. (Решения: Решение об активизации усилий ОБСЕ по борьбе c торгов- лей людьми) Совет министров,

58 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Партнеры по выполнению

(…) 7. Призывает институты ОБСЕ, и в частности БДИПЧ, а также операции на местах разрабатывать и осуществлять программы противодействия торговле людьми и способствовать скоординированным усилиям в области предупреждения, судеб- ного преследования и защиты совместно с неправительственными организаци- ями, международными организациями и другими соответствующими институ- тами; (…) 13. Призывает Секретариат ОБСЕ в сотрудничестве с БДИПЧ усилить подготовку по вопросам борьбы с торговлей людьми в рамках вводных программ для персо- нала ОБСЕ на местах в целях повышения его способности следить за положением дел с торговлей людьми, докладывать об этом и предпринимать шаги по реше- нию этой проблемы в рамках регулярной деятельности ОБСЕ; а также повышать в рамках институтов ОБСЕ и среди персонала ОБСЕ осведомленность о пробле- мах, связанных с торговлей людьми; доступ к этим учебным программам должен быть предоставлен также государствам-участникам и другим международным организациям; (…) Маастрихт 2003 г. (Решения: Приложение к Решению No. 2/03: Борьба с торгов- лей людьми: План действий ОБСЕ по борьбе с торговлей людьми) III. Расследование, правоприменение и судебное преследование (…) 9. Обзор и реформа законодательства 9.1 БДИПЧ и, в соответствующих случаях, структуры на местах будут продолжать поощрять и поддерживать усилия по обзору и реформированию законодательс- тва в соответствии с международными стандартами. (…) 10. Правоохранительные меры (…) 10.4 БДИПЧ в рамках оказываемого им содействия в разработке национальных механизмов передачи и рассмотрения дел будет продолжать поощрять сотрудни- чество между правоохранительными органами и гражданским обществом и спо- собствовать ему. (…) 12. Подготовка кадров 12.1 БДИПЧ и Группа ОБСЕ по стратегическим вопросам полицейской деятель- ности будут продолжать разрабатывать учебные материалы для сотрудников пра-

Обязательства ОБСЕ в области человеческого измерения 59 Выполнение обязательств Ч АС Т Ь I

воохранительных органов на тему расследования преступлений, связанных с торговлей людьми, и половых преступлений, консультироваться с Международ- ной правоохранительной академией (МПА) в Будапеште относительно возмож- ностей включения такой учебы в программы МПА, подбирать инструкторов для проведения занятий по вопросам правоохранительной работы и способствовать финансированию учебных занятий для сотрудников правоохранительных орга- нов в государствах-участниках ОБСЕ. (…) IV. Предупреждение торговли людьми (…) 8. Повышение осведомленности 8.1 БДИПЧ и, где это целесообразно, операции на местах будут и далее вносить вклад в исследовательскую работу, наряду с поощрением и осуществлением ини- циатив по повышению осведомленности во взаимодействии с соответствующими партнерами повсюду в регионе ОБСЕ. 8.2 (…) БДИПЧ активизирует проведение учебных мероприятий, посвященных ответственности средств массовой информации за тактичное освещение темы торговли людьми, не приводящее к укреплению негативных стереотипов. В ходе учебной подготовки акцент будет сделан на том, что торговля людьми представ- ляет собой сложное явление и для противодействия ей необходим комплексный подход. (…) V. Защита и помощь (…) 11. Национальный механизм передачи и рассмотрения дел 11.1 Активизировать деятельность ОБСЕ, и особенно БДИПЧ, в целях оказания государствам-участникам по их просьбе помощи в создании НМПР. 11.2 Поручить группе ОБСЕ по стратегическим вопросам полицейской деятель- ности совместно с БДИПЧ дальнейшую разработку руководства или пособия по выявлению предполагаемых жертв и сбору доказательств ТЛ в целях оказания, по мере необходимости, помощи государствам-участникам. (…) 14. Подготовка кадров (…) 14.2 Поручить БДИПЧ сбор и распространение информации о мерах, учебных программах и материалах, уже существующих в государствах-участниках ОБСЕ. 15. Законодательные меры

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15.1 Координируя свои действия с Управлением ООН по наркотикам и преступ- ности, Советом Европы и другими соответствующими участниками, БДИПЧ будет продолжать оказывать государствам-участникам по их просьбе помощь в приведении их национального законодательства в соответствие с международ- ными нормами и стандартами, прежде всего за счет поощрения гуманного и основанного на сострадании подхода к жертвам ТЛ. VI. Механизмы осуществления дальнейших шагов и координации действий (…) 7. Поручает БДИПЧ оказывать государствам-участникам, когда это целесооб- разно, необходимую техническую помощь в разработке национальных планов действий по борьбе с торговлей людьми, включая меры содействия в законода- тельной и иных областях, направленные на эффективное предотвращение и пре- сечение торговли людьми и защиту ее жертв. (…) 9. Поручает БДИПЧ развивать далее его функции центра по обмену информа- цией, поддержанию контактов, распространению материалов и передового опыта, а также активизировать его деятельность по проектам. VII. Дополнительные задачи, относящиеся к борьбе с терроризмом Бухарест 2001 г. (Решения: Приложение к Решению No. 1: Борьба c терроризмом: Бухарестский план действий по борьбе с терроризмом) II. Международные юридические и политические обязательства (…) 6. Бюро по демократическим институтам и правам человека (БДИПЧ): в тесном сотрудничестве с другими организациями, включая Управление ООН по конт- ролю над наркотиками и предупреждению преступности (УКНПП ООН), будет на основании официальных запросов заинтересованных государств-участни- ков и по мере необходимости оказывать техническую помощь/консультационные услуги по законодательному оформлению ратификации международных доку- ментов. (…) III. Превентивные меры против терроризма в регионе ОБСЕ (…) 10. Построение институтов, укрепление верховенства закона и органов государс- твенной власти. БДИПЧ: по просьбе государств будет продолжать и наращи- вать усилия по утверждению и содействию в построении демократических инс- титутов, в частности, путем оказания помощи в укреплении административного потенциала, местных и центральных государственных и парламентских струк- тур, судебной системы, институтов омбудсмена и гражданского общества; будет

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содействовать в этой связи обмену между государствами-участниками наилуч- шей практикой и опытом; будет и далее разрабатывать проекты по упрочению демократических институтов, гражданского общества и надлежащей практики государственного управления. (…) Укрепление национального антитеррористического законодательства (…) 18. БДИПЧ: по просьбе заинтересованных государств-участников в соответству- ющих случаях будет оказывать техническую помощь/консультационные услуги в вопросах осуществления международных конвенций и протоколов по борьбе с терроризмом, а также приведения этого законодательства в соответствие с меж- дународными нормами согласно решениям Постоянного совета и стремиться в этих целях к сотрудничеству с другими организациями, особенно с УКНПП ООН; рассмотрит пути облегчения контактов между национальными экспертами с целью содействия обмену информацией и наилучшей практикой, связанной с законодательством по противодействию терроризму. (…) Поддержка правоохранительной деятельности и борьба с организованной преступностью (…) 22. БДИПЧ: будет и впредь консультировать государства-участники по их про- сьбе по вопросам укрепления обеспечивающих верховенство закона внутрен- них правовых механизмов и институтов, таких, как правоохранительные органы, суды и органы прокуратуры, ассоциации юристов и адвокаты; будет расширять свою деятельность по борьбе с торговлей людьми и оказывать поддержку жерт- вам такой торговли; будет в соответствующих случаях поддерживать проведение тюремной реформы и совершенствование уголовно-процессуальных норм. B. Верховный комиссар по делам национальных меньшинств Хельсинки 1992 г. (Решения: II. Верховный комиссар СБСЕ по делам националь- ных меньшинств) (1) Государства-участники принимают решение учредить пост Верховного комис- сара по делам национальных меньшинств. Мандат (2) Верховный комиссар будет действовать под эгидой КСДЛ и, таким образом, способствовать предотвращению конфликтов по возможности на самом раннем этапе. (3) Верховный комиссар будет обеспечивать, по возможности на самом раннем этапе, “раннее предупреждение” и, в соответствующих случаях, “срочные дейс-

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твия” в отношении связанных с проблемами национальных меньшинств напря- женных ситуаций, которые еще не вышли из стадии раннего предупреждения, но потенциально способны, по мнению Верховного комиссара, перерасти в кон- фликт в регионе СБСЕ, затрагивающий мир, стабильность или отношения между государствами-участниками, и требуют внимания и действий Совета или КСДЛ. (4) В рамках этого мандата, основанного на принятых в СБСЕ принципах и обя- зательствах, Верховный комиссар будет проводить работу конфиденциально и действовать независимо от всех сторон, непосредственно вовлеченных в такие напряженные ситуации. (5а) Верховный комиссар будет рассматривать проблемы национальных мень- шинств, возникающие в том государстве, гражданином которого он является или на территории которого он постоянно проживает, а также проблемы, затрагиваю- щие национальное меньшинство, к которому он принадлежит, только при нали- чии согласия всех непосредственно причастных сторон, включая государство, о котором идет речь. (5b) Верховный комиссар не будет рассматривать вопросы национальных мень- шинств в ситуациях, связанных с организованными актами терроризма. (5с) Верховный комиссар не будет также рассматривать нарушения обязательств по СБСЕ в отношении отдельных лиц, принадлежащих к тому или иному нацио- нальному меньшинству. (6) При рассмотрении той или иной ситуации Верховный комиссар будет в пол- ной мере учитывать наличие демократических средств и международных инстру- ментов для целей ее урегулирования, а также их использование заинтересован- ными сторонами. (7) В тех случаях, когда до сведения КСДЛ доводится конкретный вопрос, каса- ющийся национального меньшинства, для подключения Верховного комиссара к рассмотрению данного вопроса потребуется соответствующая просьба и конк- ретный мандат от КСДЛ. Общие сведения, назначение, поддержка (8) Пост Верховного комиссара будут занимать видные международные деятели с соответствующим обширным опытом, от которых можно ожидать беспристраст- ности в осуществлении порученных функций. (9) Назначение Верховного комиссара будет производиться Советом на основе консенсуса по рекомендации КСДЛ на период в три года, который может быть продлен не более чем на один трехлетний срок. (10) Верховный комиссар будет использовать технические средства и возмож- ности БДИПЧ в Варшаве и, в частности, имеющуюся в распоряжении БДИПЧ информацию по всем аспектам проблемы национальных меньшинств.

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Раннее предупреждение (11) Верховный комиссар будет: (11а) собирать и получать из источников, о которых говорится ниже (см. пункты (23)-(25) Дополнения), информацию по вопросам национальных меньшинств; (11b) осуществлять оценку, по возможности на самом раннем этапе, роли непос- редственно заинтересованных сторон, характера напряженности и связанных с ней последний событий, а также, когда это возможно, потенциальных последс- твий для мира и стабильности в регионе СБСЕ; (11с) с этой целью иметь возможность посещать в соответствии с пунктом (17), а также пунктами (27)-(30) Дополнения любое из государств-участников и лично вступать в контакт, с учетом положений пункта (25), с непосредственно заинте- ресованными сторонами для получения из первых рук информации о положении национальных меньшинств. (12) Во время посещения государства-участника при получении из первых рук информации от всех непосредственно участвующих сторон Верховный комиссар может обсуждать со сторонами соответствующие вопросы, и при необходимости содействовать диалогу, укреплению доверия и сотрудничеству между ними. Обеспечение раннего предупреждения (13) Если на основе обменов сообщениями и контактов с соответствующими сто- ронами Верховный комиссар приходит к выводу о том, что налицо опасность потенциального конфликта (как это изложено в пункте (3)), он/она может высту- пить с ранним предупреждением, которое будет оперативно передано КСДЛ дейс- твующим Председателем. (14) Действующий Председатель включит это раннее предупреждение в повес- тку дня следующей встречи КСДЛ. Если какое-либо из государств решит, что такое раннее предупреждение требует оперативного проведения консультаций, оно может прибегнуть к процедуре, изложенной в Приложении 2 Резюме выводов Берлинской встречи Совета (“Чрезвычайный механизм”). (15) Верховный комиссар разъяснит КСДЛ причины обращения с ранним предуп- реждением. Срочные действия (16) Верховный комиссар может рекомендовать предоставить ему/ей полномочия для установления дальнейших контактов и проведения более обстоятельных кон- сультаций с заинтересованными сторонами с целью поиска возможных решений согласно мандату, утверждаемому КСДЛ. КСДЛ может принять соответствующее решение. Подотчетность (17) До поездки в какое-либо из государств-участников с целью рассмотре- ния напряженной ситуации, связанной с национальными меньшинствами, Вер-

64 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Партнеры по выполнению

ховный комиссар проведет консультации с действующим Председателем. Дейс- твующий Председатель в конфиденциальном порядке проконсультируется с соответствующим(и) государством-участником (государствами-участниками), а также может провести более широкие консультации. (18) После посещения государства-участника Верховный комиссар представит действующему Председателю строго конфидюенциальный отчет об установлен- ных им фактах и ходе его работы по решению данного конкретного вопроса. (19) После завершения своей работы над тем или иным конкретным вопросом Верховный комиссар представит действующему Председателю отчет об установ- ленных им фактах, результатах и выводах. В месячный срок действующий Пред- седатель в конфиденциальном порядке проведет с соответствующим(и) государс- твом-участником (государствами-участниками) консультации относительно уста- новленных фактов, результатов и выводов, а также может провести более широ- кие консультации. После этого отчет вместе с возможными замечаниями будет передан КСДЛ. (20) Если Верховный комиссар придет к выводу, что ситуация перерастает в кон- фликт, либо сочтет, что возможности в плане приложения его усилий исчерпаны, он соответственно информирует об этом КСДЛ через действующего Председа- теля. (21) В случае подключения КСДЛ к рассмотрению того или иного конкретного вопроса Верховный комиссар предоставит информацию, а также, по запросу, рекомендацию КСДЛ или любому другому учреждению или организации, кото- рым КСДЛ может предложить в соответствии с положениями главы III настоя- щего документа предпринять шаги в отношении данной напряженной ситуации или конфликта. (22) Верховный комиссар при наличии соответствующей просьбы со стороны КСДЛ и с должным учетом требования о конфиденциальности осуществления его/ее мандата будет предоставлять информацию о своей деятельности на сове- щаниях СБСЕ по рассмотрению выполнения, посвященных вопросам человечес- кого измерения. Дополнение Источники информации по вопросам национальных меньшинств (23) Верховный комиссар может: (23а) собирать и получать из любого источника, в том числе от средств массовой информации и неправительственных организаций, за исключением указанных в пункте (25), информацию о положении национальных меньшинств и роли при- частных к нему сторон; (23b) получать конкретные доклады от непосредственно причастных сторон о событиях, связанных с вопросами национальных меньшинств. В их число могут входить доклады о нарушениях обязательств по СБСЕ в отношении националь-

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ных меньшинств, а также других нарушениях в связи с вопросами национальных меньшинств. (24) Такие конкретные доклады, направляемые Верховному комиссару, должны отвечать следующим требованиям: • они должны быть представлены в письменном виде, адресованы лично Верхов- ному комиссару и подписаны, с указанием фамилии, имени и адреса полностью; • они должны содержать фактический отчет о недавних, в основном произошед- ших не более года назад событиях, которые касаются положения лиц, прина- длежащих к национальным меньшинствам, а также роли причастных сторон. В докладах должна содержаться информация, которая может быть подкреплена достаточно убедительными фактами. (25) Верховный комиссар не будет поддерживать контакты с любыми лицами или организациями, прибегающими к терроризму или насилию либо открыто подде- рживающими их, равно как и принимать представленные ими сообщения. Непосредственно заинтересованные стороны (26) Непосредственно заинтересованными сторонами, вовлеченными в напря- женную ситуацию, которые могут представлять Верховному комиссару конкрет- ные доклады и с которыми Верховный комиссар будет стремиться лично всту- пить в контакт во время посещения государства-участника, являются: (26а) правительства государств-участников, включая в соответствующих слу- чаях региональные и местные власти в районах проживания национальных мень- шинств; (26b) представители ассоциаций, неправительственных организаций, религиоз- ных и других групп непосредственно заинтересованных и находящихся в районе напряженности национальных меньшинств, уполномоченные лицами, принадле- жащими к этим национальным меньшинствам, представлять их интересы. Условия поездок Верховного комиссара (27) До осуществления намеченного посещения Верховный комиссар будет пре- доставлять соответствующему государству-участнику конкретную информацию о намеченной цели этого посещения. В двухнедельный срок соответствующее(ие) государство(а) проведет(ут) консультации с Верховным комиссаром в отношении задач этого посещения, которые могут включать содействие диалогу, укреплению доверия и сотрудничеству между сторонами. По прибытии Верховного комиссара соответствующее государство будет оказывать ему содействие в обеспечении бес- препятственных поездок и общения с учетом положений пункта (25), который приводится выше. (28) Если соответствующее государство не предоставит Верховному комиссару возможность въезда в страну, а также беспрепятственного перемещения и обще- ния, то Верховный комиссар проинформирует об этом КСДЛ.

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(29) В ходе такого посещения, с учетом положений пункта (25), Верховный комис- сар может проводить консультации с участвующими сторонами и получать кон- фиденциально от любого из непосредственно заинтересованных лиц, групп или организаций информацию по вопросам, которыми занимается Верховный комис- сар. Верховный комиссар будет соблюдать конфиденциальный характер этой информации. (30) Государства-участники будут воздерживаться от принятия каких-либо мер против лиц, организаций или учреждений по причине их контактов с Верховным комиссаром. Верховный комиссар и участие экспертов (31) Верховный комиссар может решить запросить помощь не более чем трех экс- пертов, обладающих соответствующим специальным опытом и знаниями по кон- кретным вопросам, для решения которых требуются краткое специализирован- ное исследование и консультации. (32) Если Верховный комиссар решит обратиться к экспертам, то он четко опреде- лит их мандат и сроки работы. (33) Посещение экспертами государства-участника будет проходить исключи- тельно в то же время, что и его посещение Верховным комиссаром. Их мандат будет являться неотъемлемой частью мандата Верховного комиссара, а их поез- дки будут осуществляться на тех же условиях. (34) Консультативные заключения и рекомендации, запрошенные у экспертов, будут представляться Верховному комиссару в конфиденциальном порядке, и он будет нести ответственность за деятельность и доклады экспертов и прини- мать решение о том, передавать ли консультативные заключения и рекоменда- ции заинтересованным сторонам, и если да, то в какой форме. Консультативные заключения и рекомендации не будут носить обязательного характера. Если Вер- ховный комиссар решит передать такие консультативные заключения и рекомен- дации заинтересованному(ым) государству(ам), то им будет предоставлена воз- можность высказать по ним свои соображения. (35) Эксперты будут отбираться Верховным комиссаром при содействии БДИПЧ из списка кандидатов, составленного в БДИПЧ, как это предусмотрено в Доку- менте Московского совещания. (36) В число экспертов не будут входить граждане заинтересованного государс- тва-участника или лица, постоянно проживающие на его территории, равно как и любое лицо, назначенное заинтересованным государством, или любой эксперт, в отношении которого этим государством-участником ранее высказывались ого- ворки. В число экспертов не будут входить собственные граждане этого государс- тва-участника или лица, постоянно проживающие на его территории, или же кто-либо из лиц, предложенных им для включения в список кандидатов, а также более одного гражданина конкретного государства или лица, постоянно прожи- вающего на территории любого конкретного государства.

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Стокгольм 1992 г. (Решения: 3. Верховный комиссар по делам национальных меньшинств) (…) Министры высказались в поддержку Верховного комиссара и выразили готов- ность сотрудничать с ним при решении стоящей перед ним сложной, но весьма важной задачи выявления на возможно более ранней стадии и сдерживания мас- штабов трений по вопросам, которые связаны с национальными меньшинствами и потенциально могут перерасти в конфликт в районе СБСЕ. Министры призвали Верховного комиссара вести тщательное изучение потенци- альных районов напряженности, посещать любые государства-участники и про- водить широкие обсуждения на всех уровнях со сторонами, непосредственно вовлеченными в такие ситуации. В этой связи Верховный комиссар может обсуж- дать стоящие вопросы со сторонами и, в соответствующих случаях, содейство- вать развитию диалога, доверия и сотрудничества между ними на всех уровнях с целью содействовать достижению политических решений в соответствии с при- нципами и обязательствами, принятыми в рамках СБСЕ. Министры обязались предоставлять Верховному комиссару имеющуюся в их рас- поряжении соответствующую информацию по вопросам национальных мень- шинств, полностью уважая независимость Верховного комиссара в соответствии с мандатом. Рим 1993 г. (Решения: III. Верховный комиссар по делам национальных мень- шинств) Учитывая тесную взаимосвязь между вопросами, касающимися национальных меньшинств и предотвращения конфликтов, министры предложили Верховному комиссару по делам национальных меньшинств (ВКНМ) продолжить свои уси- лия в рамках его мандата. (…) Министры подчеркнули важность полного сотруд- ничества государств-участников с Верховным комиссаром, а также поддержки в деятельности по осуществлению предложенных им рекомендаций. (…) Бухарест 2001 г. (Решения: Решение No. 5) Совет министров, (…) призывает институты ОБСЕ, в частности БДИПЧ, Верховного комиссара по делам национальных меньшинств и Представителя по вопросам свободы средств массовой информации уделять повышенное проявлениям агрессивного национа- лизма, расизма, шовинизма, ксенофобии, антисемитизма и воинствующего экс- тремизма, борьбе с нетерпимостью и дискриминацией по признаку расового или этнического происхождения, религиозных, политических или иных убеждений, а также содействию уважению верховенства закона, демократических ценностей, прав человека и основных свобод, включая свободу выражения мнений, свободу мысли, совести, религии или убеждений.

68 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Партнеры по выполнению

Маастрихт 2003 г. (Решения: Приложение к Решению No. 3/03: План действий по улучшению положения рома и синти в регионе ОБСЕ) III. Борьба с расизмом и дискриминацией (…) Законодательство и правоохранительная деятельность (…) Рекомендуемые действия институтов и структур ОБСЕ: (…) 21. ВКНМ в рамках своего мандата будет и впредь следить за разработкой анти- дискриминационного законодательства и по мере необходимости консультиро- вать государства-участники и оказывать им содействие в этом вопросе. Полиция (…) Рекомендуемые действия институтов и структур ОБСЕ: (…) 35. ВКНМ, БДИПЧ-КПРС и Группа по стратегическим вопросам полицейской деятельности будут оказывать государствам-участникам помощь в разработке кодексов поведения, призванных не допустить утверждения расовых стереотипов и улучшить межэтнические отношения. Средства массовой информации (…) Рекомендуемые действия институтов и структур ОБСЕ: (…) 42. ВКНМ будет и далее разрабатывать и распространять адресованные дирек- тивным органам руководства, касающиеся использования государственных веща- тельных компаний в поликультурном обществе — в частности, с целью усилить поддержку таких компаний, вещающих для меньшинств, в том числе для рома и синти, и расширить их доступ к средствам массовой информации. (…)

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V. Улучшение доступа к образованию (…) Рекомендуемые действия институтов и структур ОБСЕ: (…) 85. ВКНМ будет побуждать государства-участники к выполнению их обяза- тельств, касающихся обеспечения всем членам общества свободного и равного доступа к государственному образованию, а также будет побуждать их принимать меры по улучшению положения рома и синти в этом плане. 86. ВКНМ будет продолжать формулировать руководящие принципы, касающи- еся моделей образования, содержания учебных программ, обучения родным язы- кам и преподавания на этих языках, включая цыганский язык. VI. Расширение участия в общественно-политической жизни (…) Рекомендуемые действия институтов и структур ОБСЕ: (…) 104. ВКНМ в рамках своего мандата будет продолжать консультировать государс- тва относительно соответствующих путей и средств содействия участию рома и синти во всех сферах общественной жизни. (…) VII. Рома и синти в кризисных и послекризисных ситуациях (…) Рекомендуемые действия институтов и структур ОБСЕ: (…) 117. ВКНМ будет продолжать осуществлять свой мандат по предотвращению кон- фликтов на возможно более раннем этапе. София 2004 г. (Решения: Приложение к Решению No. 14/04: План действий ОБСЕ 2004 года по поддержке гендерного равенства) V. Поддержка выполнения государствами-участниками ОБСЕ соответству- ющих обязательств по поддержке равенства между женщинами и мужчи- нами (…) (d) Обеспечение равных возможностей для участия женщин в политической и общественной жизни (…)

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• Верховный комиссар по делам национальных меньшинств (ВКНМ) будет рас- сматривать конкретные вопросы, касающиеся роли женщин, принадлежащих к национальным меньшинствам, в общественной и частной жизни и будет в рам- ках политики и проектов, разрабатываемых его Бюро, предпринимать необхо- димые шаги для борьбы с двойной дискриминацией, которой подвергаются эти женщины, делая это в соответствующих случаях в контексте своего мандата по предотвращению конфликтов. C. Представитель по вопросам свободы средств массовой информации Копенгаген 1997 г. (Приложение 1: Решение No. 193 Постоянного совета, Мандат представителя ОБСЕ по вопросам свободы средств массовой информации) 1. Государства-участники вновь подтверждают принципы и обязательства, при- нятые ими в отношении свободы средств массовой информации (СМИ). Они, в частности, напоминают о том, что свобода выражения своего мнения является одним из основных международно признанных прав человека и основополагаю- щих элементов демократического общества и что наличие свободных, независи- мых и плюралистичных средств массовой информации представляет собой необ- ходимое условие существования свободного и открытого общества и подотчет- ной ему системы правления. Принимая во внимание принципы и обязательс- тва, которые государства-участники приняли в рамках ОБСЕ, и будучи в полной мере приверженными выполнению положений пункта 11 Декларации Лиссабонс- кой встречи на высшем уровне, они постановляют учредить под эгидой Постоян- ного совета пост Представителя ОБСЕ по вопросам средств массовой информа- ции. Это делается с целью более полного выполнения соответствующих принци- пов и обязательств ОБСЕ, а также повышения эффективности совместных дейс- твий государств-участников на базе их общих ценностей. Государства-участники подтверждают свое намерение в полной мере сотрудничать с Представителем ОБСЕ по вопросам свободы средств массовой информации. Он будет оказывать государствам-участникам помощь, в духе сотрудничества, в дальнейшем претво- рении в жизнь их приверженности развитию свободных, независимых и плюра- листичных средств массовой информации. 2. Основываясь на принципах и обязательствах ОБСЕ, Представитель ОБСЕ по вопросам свободы средств массовой информации будет наблюдать за происхо- дящим в этой связи в области средств массовой информации во всех государс- твах-участниках, а также, с учетом этого и в тесном взаимодействии с Действу- ющим председателем, будет поддерживать и поощрять полное соблюдение при- нципов и обязательств ОБСЕ, касающихся свободы выражения своего мнения и свободы средств массовой информации. В этом отношении он будет выполнять функции раннего предупреждения. Он будет заниматься рассмотрением серьез- ных проблем, связанных, помимо прочего, с созданием помех для работы средств массовой информации и неблагоприятных условий для деятельности журналис- тов. Он будет работать в тесном взаимодействии с государствами-участниками, Постоянным советом, Бюро по демократическим институтам и правам человека (БДИПЧ), Верховным комиссаром по делам национальных меньшинств и, в соот-

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ветствующих случаях, с другими структурами ОБСЕ, а также с национальными и международными союзами журналистов. 3. Руководствуясь положениями данного пункта, Представитель ОБСЕ по вопро- сам свободы средств массовой информации будет направлять свои основные уси- лия на оперативное реагирование на случаи серьезного несоблюдения государс- твами-участниками принципов и обязательств ОБСЕ, касающихся свободы выра- жения своего мнения и свободы средств массовой информации. Получив сигнал о серьезном несоблюдении этих принципов и обязательств, Представитель ОБСЕ по вопросам свободы средств массовой информации будет устанавливать в над- лежащем порядке непосредственный контакт с представителями соответствую- щего государства-участника и с другими заинтересованными сторонами, произ- водить анализ фактов, оказывать помощь государству-участнику и содействовать решению проблемы. Он будет систематически информировать Действующего председателя о своей деятельности и докладывать Постоянному совету о достиг- нутых результатах, своих замечаниях и рекомендациях. 4. Представитель ОБСЕ по вопросам свободы средств массовой информации не выполняет юридических функций, а его деятельность ни в коей мере не может предопределять применение национальных или международных юридических процедур в связи с заявлениями о нарушении прав человека. В свою очередь, сов- сем не обязательно, что применение национальных или международных процедур в связи с заявлениями о нарушении прав человека будет препятствовать выпол- нению им своих функций в соответствии с настоящим мандатом. 5. Представитель ОБСЕ по вопросам свободы средств массовой информации вправе собирать и получать сведения о положении средств массовой информации из всех заслуживающих доверия источников. Он, в частности, будет опираться на информацию и оценки, поступающие от БДИПЧ. Представитель ОБСЕ по вопро- сам свободы средств массовой информации будет оказывать БДИПЧ помощь в оценке условий для работы свободных, независимых и плюралистичных средств массовой информации в период до, во время и после выборов. 6. Представитель ОБСЕ по вопросам свободы средств массовой информации вправе в любое время собирать и получать от государств-участников и других заинтересованных сторон (например, от организаций или институтов, СМИ и их представителей и соответствующих НПО) запросы, предложения и соображения, касающиеся укрепления и дальнейшего повышения эффективности соблюдения соответствующих принципов и обязательств ОБСЕ, в том числе в связи с сообще- ниями о серьезных проявлениях нетерпимости со стороны государств-участни- ков, использующих СМИ в нарушение принципов, зафиксированных в пункте 25 главы VIII Будапештского документа и части X Решений Римской встречи Совета СБСЕ. Он может передавать запросы, предложения и соображения на рассмотре- ние Постоянного совета, сопровождая их, в случае необходимости, рекомендаци- ями относительно дальнейших действий.

72 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Партнеры по выполнению

7. Кроме того, Представитель ОБСЕ по вопросам свободы средств массовой информации будет систематически проводить консультации с Действующим председателем и на регулярной основе представлять доклады Постоянному совету. Он может приглашаться на Постоянный совет для представления докла- дов в соответствии с настоящим мандатом по конкретным вопросам, касающимся свободы выражения своего мнения и свободных, независимых и плюралистич- ных средств массовой информации. Он будет ежегодно представлять на совеща- нии по рассмотрению выполнения, посвященном вопросам человеческого изме- рения, или на совещании ОБСЕ по обзору доклад о положении дел с выполнением принципов и обязательств ОБСЕ, касающихся свободы выражения своего мне- ния и свободы средств массовой информации, в государствах-участниках ОБСЕ. 8. Представитель ОБСЕ по вопросам свободы средств массовой информации не будет поддерживать контактов с любыми лицами или организациями, применя- ющими или публично оправдывающими террористические или насильственные методы, и не будет отвечать на их обращения. 9. Представителем ОБСЕ по вопросам свободы средств массовой информации будет видный международный деятель с многолетним опытом работы, связанной с данной областью, от которого будет ожидаться непредвзятое выполнение воз- ложенных на него функций. При исполнении своих обязанностей Представитель ОБСЕ по вопросам свободы средств массовой информации будет руководство- ваться своим самостоятельным и объективным толкованием соответствующих положений настоящего мандата. 10. Представитель ОБСЕ по вопросам свободы средств массовой информации будет рассматривать серьезные случаи, относящиеся к настоящему мандату и воз- никающие в государстве-участнике, гражданином которого он является или в котором он проживает на постоянной основе, только при условии согласия на это всех непосредственно вовлеченных сторон, включая заинтересованное государс- тво-участник. При отсутствии такого согласия вопрос будет передаваться на рас- смотрение Действующего председателя, который может назначить специального представителя по этому конкретному случаю. 11. Представитель ОБСЕ по вопросам свободы средств массовой информации будет сотрудничать — путем поддержания регулярных контактов — с соответс- твующими международными организациями, включая Организацию Объединен- ных Наций и ее специализированные учреждения, а также Совет Европы, в целях улучшения координации действий и избежания дублирования в работе. 12. Представитель ОБСЕ по вопросам свободы средств массовой информации будет назначаться в соответствии с процедурами ОБСЕ Советом министров по рекомендации Действующего председателя по итогам консультаций с государс- твами-участниками. Назначение производится на срок в три года с возможным однократным продлением в том же порядке еще на три года. (…)

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14. Бюро Представителя ОБСЕ по вопросам свободы средств массовой информа- ции будет размещаться в Вене. Бухарест 2001 г. (Приложение к Решению No. 1: Борьба c терроризмом: Бухарест- ский план действий по борьбе с терроризмом) Утверждение прав человека, терпимости и поликультурности (…) 12. Представитель по вопросам свободы средств массовой информации: рас- смотрит вопрос о разработке проектов, направленных на утверждение терпи- мости по отношению к людям других убеждений и верований путем использова- ния средств массовой информации; будет способствовать принятию мер по недо- пущению в средствах массовой информации проявлений агрессивного национа- лизма, расизма, шовинизма, ксенофобии и антисемитизма и борьбе с ними; будет и далее стимулировать дискуссии в духе плюрализма и побуждать средства мас- совой информации уделять больше внимания пропаганде терпимого отношения к этническому, религиозному, языковому и культурному многообразию и в этом контексте будет способствовать широкому доступу общественности к средствам массовой информации, а также проявлять бдительность в отношении разжига- ния ненависти. (…) Поддержка правоохранительной деятельности и борьба с организованной преступностью (…) 23. Представитель по вопросам свободы средств массовой информации: будет по запросам участвовать в поддержке усилий по выработке законодательства о недо- пущении использования информационных технологий в целях террористической деятельности при обеспечении соответствия таких законов обязательствам, каса- ющимся свободы выражения мнений и свободы потоков информации. Бухарест 2001 г. (Решения: Решение No. 5) Совет министров, (…) призывает институты ОБСЕ, в частности БДИПЧ, Верховного комиссара по делам национальных меньшинств и Представителя по вопросам свободы средств массовой информации уделять повышенное проявлениям агрессивного национа- лизма, расизма, шовинизма, ксенофобии, антисемитизма и воинствующего экс- тремизма, борьбе с нетерпимостью и дискриминацией по признаку расового или этнического происхождения, религиозных, политических или иных убеждений, а также содействию уважению верховенства закона, демократических ценностей, прав человека и основных свобод, включая свободу выражения мнений, свободу мысли, совести, религии или убеждений.

74 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Партнеры по выполнению

Маастрихт 2003 г. (Решения: Приложение к Решению No. 3/03: План действий по улучшению положения рома и синти в регионе ОБСЕ) Средства массовой информации (…) Рекомендуемые действия институтов и структур ОБСЕ: 39. Во взаимодействии с БДИПЧ и соответствующими международными орга- низациями Представителю по вопросам свободы средств массовой информа- ции (ПССМИ) следует рассмотреть вопрос о возможном вкладе ОБСЕ в создание Европейского цыганского радио с вещанием на всю Европу. БДИПЧ и ПССМИ следует организовывать общественные диспуты, кампании против дискримина- ции и совместные учебные программы с участием работников средств массовой информации и для них. 40. ПССМИ следует рассмотреть вопрос об оказании содействия в проведении учебных семинаров для журналистов-цыган. 41. БДИПЧ-КПРС и ПССМИ будут организовывать “круглые столы” с участием журналистов, посвященные образу рома и синти в общественном сознании. София 2004 г. (Решения: Приложение к Решению No. 12/04: Толерантность и недискриминация; Решение Постоянного совета No. 633: Содействие толерант- ности и свободе СМИ в интернете) 4. Представитель ОБСЕ по вопросам свободы средств массовой информации будет и впредь играть активную роль в содействии обеспечению как свободы выражения, так и доступа в Интернет и будет продолжать наблюдать за разви- тием событий в этой связи во всех государствах-участниках. Представитель будет отстаивать принятые в рамках ОБСЕ принципы и обязательства и содействовать их реализации. Эта деятельность будет включать раннее предупреждение о слу- чаях, когда законы или иные меры, направленные на запрет высказываний, моти- вированных расистскими, ксенофобскими, антисемитскими или иными связан- ными с этим предрассудками, применяются дискриминационно или избира- тельно в силу политических соображений, что может вести к созданию препятс- твий для выражения альтернативных мнений и взглядов. София 2004 г. (Решения: Приложение к Решению No. 14/04, План действий ОБСЕ 2004 года по поддержке гендерного равенства) V. Поддержка выполнения государствами-участниками ОБСЕ соответству- ющих обязательств по поддержке равенства между женщинами и мужчи- нами (…) (d) Обеспечение равных возможностей для участия женщин в политической и общественной жизни (…)

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• Представитель ОБСЕ по вопросам свободы средств массовой информации (ПССМИ) будет чутко реагировать на сигналы о серьезных проявлениях нетер- пимости по отношению к женщинам и о случаях подстрекательства к гендерной дискриминации в средствах массовой информации государств-участников или со стороны этих СМИ, в соответствии с главой 6 мандата ПССМИ. Предста- витель будет доводить такие случаи до сведения государств-участников в регу- лярно подготавливаемых им докладах.

76 Обязательства ОБСЕ в области человеческого измерения 3. Ограничения и отступления

3.1. Характер и рамки законных ограничений

Вена 1989 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) (21) Государства-участники будут обеспечивать, чтобы осуществление вышеупо- мянутых прав не могло быть объектом никаких ограничений, кроме тех, которые предусмотрены законом и совместимы с их обязательствами по международному праву, в частности по Международному пакту о гражданских и политических правах, и их международными обязательствами, в частности по Всеобщей декла- рации прав человека. Эти ограничения носят характер исключений. Государства- участники будут обеспечивать, чтобы этими ограничениями не злоупотребляли и чтобы они применялись не произвольно, а так, чтобы обеспечивалось эффектив- ное осуществление этих прав. Копенгаген 1990 г. (16) Государства-участники (…) (16.3) подчеркивают, что никакие исключительные обстоятельства, будь то состо- яние войны или угроза войны, внутренняя политическая нестабильность или любое другое чрезвычайное положение, не могут служить оправданием пыток; (…) (24) (…) Любое ограничение прав и свобод в демократическом обществе должно быть увязано с одной из целей применяемого закона и должно быть строго сораз- мерно предназначению этого закона.

3.2. Отступления от обязательств в условиях чрезвычайного положения

Копенгаген 1990 г. (16) Государства-участники (…)

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(16.3) подчеркивают, что никакие исключительные обстоятельства, будь то состо- яние войны или угроза войны, внутренняя политическая нестабильность или любое другое чрезвычайное положение, не могут служить оправданием пыток; (…) (24) (…) Любое ограничение прав и свобод в демократическом обществе должно быть увязано с одной из целей применяемого закона и должно быть строго сораз- мерно предназначению этого закона. (25) Государства-участники подтверждают, что любое отступление от обяза- тельств, относящихся к правам человека и основным свободам, в условиях чрез- вычайного положения должно оставаться строго в пределах, предусмотренных международным правом, в частности, соответствующими международными инс- трументами, участниками которых они являются, особенно в том, что касается прав, от которых не может быть отступлений. Они также подтверждают, что (25.1) меры, представляющие собой отступление от таких обязательств, должны приниматься в строгом соответствии с процедурными требованиями, изложен- ными в этих инструментах; (25.2) введение чрезвычайного положения должно быть объявлено официально, публично и в соответствии с положениями, закрепленными законом; (25.3) меры, представляющие собой отступление от обязательств, будут строго ограничиваться рамками, которых требует острота положения; (25.4) такие меры не повлекут за собой дискриминации исключительно на основе расовой принадлежности, цвета кожи, пола, языка, религии, социального проис- хождения или принадлежности к меньшинству. Москва 1991 г. (28) Государства-участники считают важным защищать права человека и основ- ные свободы в условиях чрезвычайного положения, учитывать соответствующие положения Документа Копенгагенского совещания и соблюдать международные конвенции, сторонами которых они являются. (28.1) Государства-участники подтверждают, что чрезвычайное положение оправ- дано лишь в исключительных и самых серьезных ситуациях в соответствии с международными обязательствами этого государства и его обязательствами в рамках СБСЕ. Чрезвычайное положение не может использоваться для сверже- ния демократического конституционного строя и быть направленным на уничто- жение международно признанных прав человека и основных свобод. Если невоз- можно избежать применения силы, она должна применяться в разумных и в мак- симально возможной степени ограниченных пределах. (28.2) Чрезвычайное положение может быть объявлено лишь законным консти- туционным органом, наделенным соответствующими полномочиями. В тех слу- чаях, когда решение о введении чрезвычайного положения может на законных

78 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I Отступления от обязательств в условиях чрезвычайного положения

основаниях приниматься органами исполнительной власти, оно должно подле- жать утверждению или контролю со стороны законодательного органа в кратчай- шие сроки. (28.3) Решение о введении чрезвычайного положения должно быть объявлено офи- циально, публично и в соответствии с положениями, закрепленными в законе. В этом решении, в тех случаях, когда это возможно, дожны указываться территори- альные рамки действия чрезвычайного положения. Соответствующее государс- тво без задержки будет предоставлять своим гражданам информацию о приня- тых мерах. Чрезвычайное положение отменяется как можно скорее и не может оставаться в силе дольше, чем это совершенно необходимо в конкретной ситуа- ции. (28.4) Не допускается введение или продление чрезвычайного положения де- факто в нарушение положений, закрепленных в законе. (28.5) Государства-участники стремятся обеспечить, чтобы в период действия чрезвычайного положения в максимально возможной степени гарантировалось нормальное функционирование законодательных органов. (…) (28.7) Государства-участники будут стремиться воздерживаться от любых отступ- лений от тех обязательств, от которых, в соответствии с международными кон- венциями, участниками которых они являются, такие отступления в условиях чрезвычайного положения возможны. Меры в отступление от таких обязательств должны приниматься строго в соответствии с процессуальными требованиями, закрепленными в этих документах. Такие меры не будут ни ужесточаться, ни оставаться в силе дольше, чем это совершенно необходимо в конкретной ситуа- ции; они по своему характеру являются исключительными мерами и должны тол- коваться и применяться ограничительно. Такие меры не будут приводить к диск- риминации исключительно по признаку расы, цвета кожи, пола, языка, религии, социального происхождения или принадлежности к меньшинству. (28.8) Государства-участники будут стремиться обеспечить, чтобы правовые гарантии, необходимые для поддержания верховенства закона, оставались в силе во время чрезвычайного положения. Они будут стремиться предусмотреть в своем законодательстве контроль за постановлениями, касающимися чрезвычай- ного положения, а также за их осуществлением. (28.9) Государства-участники будут стремиться обеспечить свободу слова и сво- боду информации, совместимые с их международными обязанностями и обяза- тельствами, с тем, чтобы общественность имела возможность обсуждать вопрос о соблюдении прав человека и основных свобод и об отмене чрезвычайного поло- жения. Они в соответствии с международными стандартами в отношении сво- боды слова не будут принимать каких-либо мер, с тем, чтобы воспрепятствовать журналистам законно осуществлять их профессиональные функции, кроме таких мер, которые совершенно необходимы в конкретной ситуации.

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(28.10) Если в государстве-участнике объявляется или отменяется чрезвычайное положение, соответствующее государство будет немедленно информировать инс- титут СБСЕ* об этом решении, а также о любом отступлении от международных обязательств этого государства в области прав человека. Институт без задержки информирует другие государства-участники.

* Решение относительно такого института будет принято Советом.

80 Обязательства ОБСЕ в области человеческого измерения  II. Отдельные обязательства по человеческому измерению 1. Обязательства, относящиеся к праву народов на самоопределение

Хельсинки 1975 г. (Вопросы, относящиеся к безопасности в Европе: 1. (a) Декла- рация принципов, которыми государства-участники будут руководствоваться во взаимных отношениях; Принцип VIII) VIII. Равноправие и право народов распоряжаться своей судьбой Государства-участники будут уважать равноправие и право народов распоря- жаться своей судьбой, действуя постоянно в соответствии с целями и принци- пами Устава ООН и соответствующими нормами международного права, вклю- чая те, которые относятся к территориальной целостности государств. Исходя из принципа равноправия и права народов распоряжаться своей судьбой, все народы всегда имеют право в условиях полной свободы определять, когда и как они желают, свой внутренний и внешний политический статус без вмеша- тельства извне и осуществлять по своему усмотрению свое политическое, эконо- мическое, социальное и культурное развитие. Государства-участники подтверждают всеобщее значение уважения и эффектив- ного осуществления равноправия и права народов распоряжаться своей судьбой для развитя дружественных отношений между ними, как и между всеми государс- твами; они напоминают также о важности исключения любой формы нарушения этого принципа. Вена 1989 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) (4) [Государства-участники] подтверждают также, что, исходя из принципа равно- правия и права народов распоряжаться своей судьбой и согласно соответствую- щим положениям Заключительного акта, все народы всегда имеют право в усло- виях полной свободы определять, когда и как они желают, свой внутренний и вне- шний политический статус без вмешательства извне и осуществлять по своему усмотрению свое политическое, экономическое, социальное и культурное разви- тие.

Обязательства ОБСЕ в области человеческого измерения 83 2. Обязательства, относящиеся к структурным компонентам демократического общества

2.1 Общие положения

Бонн 1990 г. (Преамбула) (…) Государства-участники, признавая взаимосвязь политического плюрализма и рыночной экономики и будучи приверженными принципам, касающимся: • многопартийной демократии, основанной на свободных, периодических и истинных выборах; • правового государства и равной защиты со стороны закона для всех на основе уважения прав человека и эффективных, доступных и справедливых правовых систем; • экономической деятельности, которая соответственно утверждает человеческое достоинство и свободна от принудительного труда, от дискриминации трудя- щихся по признакам расы, пола, языка, по политическим взглядам или вероис- поведанию или от лишения трудящихся права свободно создавать независимые профсоюзы или вступать в них; (…) Копенгаген 1990 г. [Государства-участники] признают, что плюралистическая демократия и право- вое государство являются существенно необходимыми для обеспечения уваже- ния всех прав человека и основных свобод, развития контактов между людьми и решения других связанных с этим вопросов гуманитарного характера. Поэ- тому они приветствуют выраженную всеми государствами-участниками привер- женность идеалам демократии и политическому плюрализму, а также их общую решимость строить демократические общества на основе свободных выборов и верховенства закона. (…)

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(6) Государства-участники заявляют, что воля народа, выражаемая свободно и честно в ходе периодических и подлинных выборов, является основой власти и законности любого правительства. Государства-участники соответственно ува- жают право своих граждан принимать участие в управлении страной непос- редственно или через представителей, избираемых ими свободно в ходе чест- ного избирательного процесса. Они признают свою ответственность за защиту и охрану в соответствии со своими законами, своими обязательствами по меж- дународному праву в области прав человека и своими международными обяза- тельствами свободно установленный путем волеизъявления народа демократи- ческий порядок от деятельности отдельных лиц, групп или организаций, которые используют или отказываются отвергнуть терроризм или насилие, направленные на свержение этого порядка или такого порядка в другом государстве-участнике. Париж 1990 г. (Новая эра демократии, мира и единства) Мы обязуемся строить, консолидировать и укреплять демократию как единс- твенную систему правления в наших странах. В этом начинании мы будем руко- водствоваться следующим: Права человека и основные свободы с рождения принадлежат всем людям, они неотъемлемы и гарантируются законом. Их защита и содействие им — первей- шая обязанность правительства. Их уважение — существенная гарантия против обладающего чрезмерной властью государства. Их соблюдение и полное осущест- вление — основа свободы, справедливости и мира. Демократическое правление основывается на воле народа, выражаемой регулярно в ходе свободных и справедливых выборов. В основе демократии лежит уважение человеческой личности и верховенства закона. Демократия является наилучшей гарантией свободы выражения своего мнения, терпимости по отношению ко всем группам в обществе и равенства возможностей для каждого человека. Демократия, имеющая представительный и плюралистический характер, влечет за собой подотчетность избирателям, обязательство государственных властей соблюдать законы и беспристрастное отправление правосудия. Никто не должен стоять над законом. (…) Наши государства будут сотрудничать и оказывать друг другу поддержку с целью сделать демократические завоевания необратимыми. Москва 1991 г. (17) Государства-участники (17.1) безоговорочно осуждают силы, стремящиеся захватить власть у предста- вительного правительства в любом государстве-участнике вопреки воле народа, выраженной в ходе свободных и справедливых выборов, и в нарушение законно установленного конституционного строя;

86 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I I Общие положения

(17.2) в случае свержения или попытки свержения демократически избранного законного правительства какого-либо государства-участника недемократичес- кими средствами будут решительно поддерживать в соответствии с Уставом Организации Объединенных Наций законные органы этого государства, стоя- щие на страже прав человека, демократии и верховенства закона, признавая свои общие обязательства противодействовать любой попытке ограничить эти осно- вополагающие ценности; (…) Маастрихт 2003 г. (I. Стратегия ОБСЕ по противодействию угрозам безопасности и стабильности в XXI веке) 36. (…) Основываясь на своих обязательствах в области человеческого измере- ния, ОБСЕ стремится поощрять повсюду в своем регионе создание условий, поз- воляющих всем в полной мере пользоваться своими правами человека и основ- ными свободами под защитой эффективных демократических институтов, над- лежащих судебных процедур и верховенства закона. Это включает обеспечение безопасной обстановки и соответствующих институтов для мирной дискуссии и выражения своих интересов всеми лицами и общественными группами. Важную роль в этом отношении призвано играть гражданское общество, и ОБСЕ будет продолжать поддерживать организации гражданского общества и содействовать их укреплению. Маастрихт 2003 г. (Документ-стратегия ОБСЕ в области экономического и эколо- гического измерения) 2.2.1 Надлежащее государственное и корпоративное управление и крепкие инсти- туты являются важнейшими столпами здоровой экономики, способной привлечь инвесторов и тем самым позволить государствам сократить масштабы нищеты и неравенства, повысить социальную сплоченность, расширить возможности для всех и сберечь окружающую среду. Надлежащее управление на всех уровнях спо- собствует процветанию, стабильности и безопасности. Мир, добрые межгосу- дарственные отношения, безопасность и стабильность государства, а также безо- пасность граждан внутри государства, обеспечиваемая верховенством закона и уважением прав человека, имеют ключевое значение для установления климата доверия, являющегося необходимым условием позитивного социально-экономи- ческого развития. 2.2.2 Надлежащее управление архиважно для всех государств-участников, и мы условились предпринимать на национальном уровне, при поддержке соответс- твующих международных институтов, усилия по утверждению надлежащего управления во всех ее аспектах и разрабатывать методы сотрудничества для ока- зания друг другу помощи в достижении этой цели. 2.2.3 Для внедрения надлежащего управления необходим комплексный, долго- срочный стратегический подход, при котором успехи на одном направлении не ослаблялись бы недоработками других. Мы будем сотрудничать в формировании

Обязательства ОБСЕ в области человеческого измерения 87 Обязательства, относящиеся к структурным компонентам демократического общества Ч АС Т Ь I I

наших стратегий, касающихся надлежащего управления, и обмениваться инфор- мацией о наиболее успешных примерах такой практики.

2.2 Выборы

См также: á I. 2.3.4 A: Бюро по демократическим институтам и правам человека

Копенгаген 1990 г. (5) [Государства-участники] торжественно заявляют, что к числу элементов спра- ведливости, которые существенно необходимы для полного выражения досто- инства, присущего человеческой личности, и равных и неотъемлемых прав всех людей относятся следующие: (5.1) свободные выборы, проводимые через разумные промежутки времени путем тайного голосования или равноценной процедуры свободного голосования в условиях, которые обеспечивают на практике свободное выражение мнения изби- рателями при выборе своих представителей; (…) (6) Государства-участники заявляют, что воля народа, выражаемая свободно и честно в ходе периодических и подлинных выборов, является основой власти и законности любого правительства. Государства-участники соответственно ува- жают право своих граждан принимать участие в управлении страной непосредс- твенно или через представителей, избираемых ими свободно в ходе честного избирательного процесса. (…) (7) Для того, чтобы воля народа служила основой власти правительства, государс- тва-участники (7.1) проводят свободные выборы с разумной периодичностью, как это установ- лено законом; (7.2) допускают, чтобы все мандаты по крайней мере в одной палате националь- ного законодательного органа были объектом свободной состязательности кан- дидатов в ходе всенародных выборов; (7.3) гарантируют взрослым гражданам всеобщее и равное избирательное право; (7.4) обеспечивают, чтобы голосование проводилось тайно или применялась рав- ноценная процедура свободного голосования и чтобы подсчет голосов и сообще- ние о нем были честными, а официальные результаты были опубликованы; (7.5) уважают право граждан добиваться политических или государственных пос- тов в личном качестве или в качестве представителей политических партий или организаций без дискриминации; (7.6) уважают право отдельных лиц и групп лиц создавать в условиях полной сво- боды свои политические партии или другие политические организации и предо-

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ставляют таким политическим партиям и организациям необходимые юриди- ческие гарантии, позволяющие им соревноваться друг с другом на основе равенс- тва перед законом и органами власти; (7.7) обеспечивают, чтобы закон и государственная политика допускали проведе- ние политических кампаний в атмосфере свободы и честности, в которой ника- кие административные действия, насилие или запугивание не удерживали бы партии и кандидатов от свободного изложения своих взглядов и оценок, а также не мешали бы избирателям знакомиться с ними и обсуждать их или голосовать свободно, не опасаясь наказания; (7.8) обеспечивают, чтобы не устанавливались какие-либо юридические или адми- нистративные барьеры для беспрепятственного доступа к средствам массовой информации на недискриминационной основе для всех политических группиро- вок и отдельных лиц, желающих принять участие в избирательном процессе; (7.9) обеспечивают, чтобы кандидаты, получившие необходимое число голосов, определенное законом, надлежащим образом вступали в должность и могли оста- ваться в должности до истечения срока своих полномочий или до их прекраще- ния иным образом, который регулируется законом в соответствии с демократи- ческими парламентскими и конституционными процедурами. (8) Государства-участники считают, что присутствие наблюдателей, как инос- транных, так и национальных, может повысить авторитетность избиратель- ного процесса для государств, в которых проводятся выборы. Поэтому они при- глашают наблюдателей от любых других государств-участников СБСЕ и любых соответствующих частных учреждений и организаций, которые пожелают этого, наблюдать за ходом их национальных выборов в объеме, допускаемом законом. Они также будут стремиться содействовать такому же доступу к избирательным процессам, проводимым на более низком, чем общенациональный уровне. Такие наблюдатели будут брать на себя обязательство не вмешиваться в избирательный процесс. Париж 1990 г. (Новая эра демократии, мира и единства) Мы подтверждаем, что без какой-либо дискриминации каждый имеет (…) право: (…) • участвовать в свободных и справедливых выборах (…) Мы принимаем решение создать в Варшаве Бюро по свободным выборам для содействия контактам и обмену информацией о выборах в государствах-участни- ках.

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Лиссабон 1996 г. (Декларация встречи на высшем уровне) 9. (…) Среди острых проблем человеческого измерения угрозой для стабильности в регионе ОБСЕ остаются непрекращающиеся нарушения прав человека, в част- ности в форме (…) махинации на выборах (…) Мы твердо намерены продолжать усилия по решению этих проблем. Стамбул 1999 г. (Декларация встречи на высшем уровне) 26. Учитывая большое число ожидающих нас выборов, мы полны решимости обеспечить их свободный и открытый характер, а также их соответствие принци- пам и обязательствам, принятым в рамках ОБСЕ. Это единственный путь, обес- печивающий надежную основу для демократического развития. Мы по достоинс- тву оцениваем роль БДИПЧ в оказании различным странам содействия в разра- ботке законодательства о выборах, отвечающего принципам и обязательствам, принятым в рамках ОБСЕ, и намерены незамедлительно реагировать на пред- ставляемые им заключения с оценкой проведения выборов и рекомендации. (…) Мы твердо намерены в полном объеме надежно обеспечить лицам, принадлежа- щим к меньшинствам, право голоса и создать условия для осуществления бежен- цами права на участие в выборах, проводимых в стране их первоначального про- живания. Мы обязуемся обеспечить честное соперничество как между канди- датами, так и между партиями, в том числе путем предоставления им доступа к средствам массовой информации и уважения свободы собраний. Стамбул 1999 г. (Хартия европейской безопасности: III. Наш общий ответ) 25. Мы вновь подтверждаем свое обязательство проводить свободные и чест- ные выборы согласно обязательствам, принятым в рамках ОБСЕ, и в частности Копенгагенскому документу 1990 года. Мы признаем, что БДИПЧ может оказы- вать государствам-участникам помощь в разработке и осуществлении законода- тельства о выборах. Сообразуясь с этими обязательствами, мы будем приглашать на проводимые в наших странах выборы наблюдателей из других государств- участников, БДИПЧ, Парламентской ассамблеи ОБСЕ и соответствующих инсти- тутов и организаций, которые хотели бы наблюдать за их проведением. (…) Порту 2002 г. (Решения: Решение No. 7: Обязательства, касающиеся выборов) Совет министров, ссылаясь на положения Документа Копенгагенского совещания Конференции по человеческому измерению СБСЕ (1990 год), отмечая, что эти положения были дополнены новыми обязательствами, (…) вновь подтверждая решимость выполнять эти обязательства, отмечая, что демократические выборы могут проводиться в условиях разнооб- разных избирательных систем, признавая экспертный потенциал БДИПЧ по содействию государствам-участни- кам в выполнении обязательств, связанных с выборами,

90 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I I Демократические институты

принимая во внимание Решение ПС No. 509 “Международные нормы и обязатель- ства: практическое руководство по лучшей практике проведения демократичес- ких выборов”, призывает государства-участники более действенно реагировать на рекоменда- ции БДИПЧ по итогам наблюдения за выборами; (…) Маастрихт 2003 г. (Решения: Решение No. 5/03: Выборы) Совет министров, (…) приветствуя продолжающееся эффективное сотрудничество между БДИПЧ и Парламентской ассамблеей ОБСЕ в области наблюдения за выборами, приветствуя документ “Существующие обязательства относительно демократи- ческих выборов в государствах-участниках ОБСЕ: доклад о ходе работы” (ODIHR. GAL/39/03), подготовленный БДИПЧ и представленный государствам-участни- кам в июне этого года, признавая, в частности, необходимость доверия электората ко всему процессу в целом, транспарентности избирательных процедур и подотчетности органов, занимающихся проведением выборов, призывает государства-участники и впредь углублять свое сотрудничество с БДИПЧ в этой области, поручает БДИПЧ рассмотреть пути повышения эффективности своего содейс- твия государствам-участникам в принятии мер по рекомендациям, сформулиро- ванным в докладах БДИПЧ о наблюдении за выборами (…)

2.3 Демократические институты

2.3.1 Общие положения Копенгаген 1990 г. (3) [Государства-участники] подтверждают, что демократия является неотъемле- мым элементом правового государства. Они признают важность плюрализма в отношении политических организаций. (4) Они подтверждают, что будут уважать право друг друга свободно выбирать и развивать в соответствии с международными стандартами в области прав чело- века свои политические, социальные, экономические и культурные системы. Осу- ществляя это право, они будут обеспечивать, чтобы их законы, административ- ные правила, практика и политика сообразовывались с их обязательством по международному праву и были гармонизированы с положениями Декларации принципов и другими обязательствами по СБСЕ. (5) Они торжественно заявляют, что к числу элементов справедливости, которые существенно необходимы для полного выражения достоинства, присущего чело-

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веческой личности, и равных и неотъемлемых прав всех людей относятся следу- ющие: (5.1) свободные выборы, проводимые через разумные промежутки времени путем тайного голосования или равноценной процедуры свободного голосования в условиях, которые обеспечивают на практике свободное выражение мнения изби- рателями при выборе своих представителей; (5.2) представительная по своему характеру форма правления, при которой испол- нительная власть подотчетна избранным законодательным органам или избира- телям; (5.3) обязанность правительства и государственных властей соблюдать конститу- цию и действовать совместимым с законом образом; (5.4) четкое разделение между государством и политическими партиями; в част- ности, политические партии не будут сливаться с государством; (5.5) деятельность правительства и администрации, а также судебных органов осуществляется в соответствии с системой, установленной законом. Уважение такой системы должно быть обеспечено; (5.6) вооруженные силы и полиция находятся под контролем гражданских влас- тей и подотчетны им; (…) (5.8) законы, принятые по завершении соответствующей гласной процедуры, и административные положения публикуются, что является условием их примене- ния. Эти тексты будут доступны для всех; (…) (6) Государства-участники заявляют, что воля народа, выражаемая свободно и честно в ходе периодических и подлинных выборов, является основой власти и законности любого правительства. Государства-участники соответственно ува- жают право своих граждан принимать участие в управлении страной непос- редственно или через представителей, избираемых ими свободно в ходе чест- ного избирательного процесса. Они признают свою ответственность за защиту и охрану в соответствии со своими законами, своими обязательствами по меж- дународному праву в области прав человека и своими международными обяза- тельствами свободно установленный путем волеизъявления народа демократи- ческий порядок от деятельности отдельных лиц, групп или организаций, которые используют или отказываются отвергнуть терроризм или насилие, направленные на свержение этого порядка или такого порядка в другом государстве-участнике. (7) Для того, чтобы воля народа служила основой власти правительства, государс- тва-участники (…)

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(7.2) допускают, чтобы все мандаты по крайней мере в одной палате националь- ного законодательного органа были объектом свободной состязательности кан- дидатов в ходе всенародных выборов; (…) (7.9) обеспечивают, чтобы кандидаты, получившие необходимое число голосов, определенное законом, надлежащим образом вступали в должность и могли оста- ваться в должности до истечения срока своих полномочий или до их прекраще- ния иным образом, который регулируется законом в соответствии с демократи- ческими парламентскими и конституционными процедурами. (…) (26) Государства-участники признают, что жизнеспособная демократия зависит от существования как составной части национальной жизни демократичских ценностей и практики, а также широго круга демократических институтов. Они будут поэтому поощрять, облегчать и, там где это целесообразно, поддерживать совместные практические усилия и обмен информацией, идеями и опытом между ними и в рамках прямых контактов и сотрудничества между отдельными лицами, группами и организациями в областях, включающих следующее: • конституционные право, реформы и развитие, • законодательство о выборах, проведение выборов и наблюдении за ними, • создание судов и правовых систем и управление ими, • развитие беспристрастной и эффективной государственной службы, в рамках которой прием на работу и продвижение по службе основываются на системе учета личных достоинств работников, • проведение законов в жизнь, • местное управление и децентрализация, • доступ к информации и обеспечение конфиденциальности, • формирующиеся политические партии и их роль в плюралистических обще- ствах, • свободные и независимые профсоюзы, • кооперативные движения, • развитие других форм свободной ассоциации и групп, преследующих обще- ственные интересы, • журналистика, независимые средства массовой информации, интеллектуальная и культурная жизнь, • преподавание знаний о демократических ценностях, институтах и практике в учебных заведениях, а также обеспечения атмосферы свободного познания.

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Такие усилия могут охватывать спектр сотрудничества в рамках человеческого измерения СБСЕ, включая обучение, обмен информацией, книгами и учебными материалами, совместные программы и проекты, научные и профессиональные обмены и конференции, стипендии, субсидии на научные исследования, предо- ставление экспертных знаний и консультативных услуг, деловые и научные кон- такты и программы. (27) Государства-участники будут также содействовать созданию и укреплению независимых национальных институтов в области прав человека и верховенс- тва закона, которые могут также выступать в качестве центров координации и сотрудничества между такими институтами в государствах-участниках. Они предлагают поощрять сотрудничество между парламентариями государств-учас- тников, в том числе через существующие межпарламентские ассоциации и, в час- тности, через совместные комиссии, телевизионные дебаты с участием парламен- тариев, встречи и обсуждения за "круглым столом". Они будут также поощрять существующие учреждения, такие как организации системы Организации Объ- единенных Наций и Совет Европы, к продолжению и расширению начатой ими работы в этой области. Москва 1991 г. (18.1) Законодательство будет разрабатываться и приниматься в результате откры- того процесса, отражающего волю народа либо непосредственно, либо через избранных им представителей.

2.3.2 Децентрализация органов власти и специальные структуры и учреждения Женева 1991 г. (IV) Учитывая разнообразие и различие своих конституционных систем, в резуль- тате чего использование одного какого-либо общего подхода не является обяза- тельным, государства-участники отмечают с интересом, что некоторыми из них достигнуты соответствующим демократическим путем положительные резуль- таты посредством, в частности, • консультативных и директивных органов, в которых представлены меньшинс- тва, в частности, в том, что касается образования, культуры и религии; • выборных органов и ассамблей по делам национальных меньшинств; • местных и автономных органов управления, а также автономии на территори- альной основе, включая существование консультативных, законодательных и исполнительных органов, избираемых на основе свободных и периодических выборов; • самоуправления национального меньшинства в тех аспектах, которые касаются его самобытности, в ситуациях, когда не существует автономии на территори- альной основе; • децентрализованных или местных форм правления;

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(…) Хельсинки 1992 г. (Решения: VI. Человеческое измерение) Государства-участники (53) В целях усиления процесса демократического участия и становления инс- титутов и в порядке развития сотрудничества между собой будут стремиться к обмену их соответствующим опытом по проблемам функционирования демок- ратии на местном и региональном уровне, и в этой связи приветствуют деятель- ность информационной и просветительской сети Совета Европы в этой области. (54) Будут содействовать контактам и поощрять различные формы сотрудничес- тва между соответствующими органами на местном и региональном уровнях.

2.3.3 Гражданский демократический контроль над вооруженными силами, военизированными формированиями, службами внутренней безопасности, и полицией Копенгаген 1990 г. (5) [Государства-участники] торжественно заявляют, что к числу элементов спра- ведливости, которые существенно необходимы для полного выражения досто- инства, присущего человеческой личности, и равных и неотъемлемых прав всех людей относятся следующие: (…) (5.6) вооруженные силы и полиция находятся под контролем гражданских влас- тей и подотчетны им; Москва 1991 г. (25) Государства-участники будут (25.1) гарантировать, чтобы их вооруженные силы и военизированные формиро- вания, службы внутренней безопасности и разведки, а также полиция находи- лись под эффективным управлением и контролем соответствующих гражданских властей; (25.2) поддерживать и, там где это необходимо, укреплять контроль исполнитель- ной власти за использованием вооруженных сил и военизированных формирова- ний, а также за деятельностью служб внутренней безопасности, разведки и поли- ции; (25.3) принимать надлежащие меры для создания, где этого еще не сделано, и под- держания эффективных механизмов надзора законодательной власти над всеми такими силами, службами и видами деятельности. Будапешт 1994 г. (Решения: IV. Кодекс поведения, касающийся военно-полити- ческих аспектов безопасности) 20. Государства-участники рассматривают демократический политический кон- троль над военными и военизированными силами, силами внутренней безопас-

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ности, а также разведывательными службами и полицией как незаменимый эле- мент стабильности и безопасности. Они будут содействовать интеграции своих вооруженных сил с гражданским обществом в качестве важного проявления демократии. 21. Каждое государство-участник будет постоянно обеспечивать и поддержи- вать эффективное руководство и контроль над своими военными и военизиро- ванными силами и силами безопасности со стороны конституционно учрежден- ных органов власти, обладающих демократической легитимностью. Каждое госу- дарство-участник будет создавать рычаги, позволяющие обеспечить выполнение такими органами возложенных на них конституционных и правовых обязаннос- тей. Государства-участники будут четко определять функции и задачи таких сил, а также их обязанность действовать исключительно в конституционных рамках. 22. Каждое государство-участник будет предусматривать утверждение своим законодательным органом расходов на оборону. Каждое государство-участник, должным образом учитывая требования национальной безопасности, будет про- являть сдержанность в своих военных расходах и обеспечивать транспарент- ность и открытый доступ к информации, касающейся вооруженных сил. 23. Каждое государство-участник, предоставляя каждому военнослужащему воз- можность осуществлять свои гражданские права, будет обеспечивать, чтобы его вооруженные силы как таковые сохраняли политический нейтралитет. 24. Каждое государство-участник будет предусматривать и сохранять в силе меры предотвращения случайного или несанкционированного использования военных средств. 25. Государства-участники не будут допускать существования сил, неподотчет- ных их конституционно учрежденным органам власти или не контролируемых ими, и не будут поддерживать такие силы. В случае если государство-участник не в состоянии осуществлять свою власть в отношении таких сил, оно может обра- титься с просьбой о проведении консультаций в рамках СБСЕ для рассмотрения необходимых мер. (…) 36. Каждое государство-участник будет обеспечивать, чтобы любое решение о направлении его вооруженных сил для выполнения задач в области внутренней безопасности принималось в соответствии с конституционными процедурами. В таких решениях будут определяться задачи, поставленные перед вооруженными силами, и будет обеспечиваться, чтобы эти задачи выполнялись под эффектив- ным контролем конституционно учрежденных органов власти и с соблюдением принципа верховенства закона. (…)

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2.3.4 Независимые национальные институты в области прав человека Копенгаген 1990 г. (27) Государства-участники будут (…) содействовать созданию и укреплению независимых национальных институтов в области прав человека и верховенс- тва закона, которые могут также выступать в качестве центров координации и сотрудничества между такими институтами в государствах-участниках. Они предлагают поощрять сотрудничество между парламентариями государств-учас- тников, в том числе через существующие межпарламентские ассоциации и, в час- тности, через совместные комиссии, телевизионные дебаты с участием парламен- тариев, встречи и обсуждения за “круглым столом”. Они будут также поощрять существующие учреждения, такие как организации системы Организации Объ- единенных Наций и Совет Европы, к продолжению и расширению начатой ими работы в этой области.

2.3.5 Неправительственные организации См. также: á I. 2.3.3: Частные лица, правозащитники и неправительственные организации

Москва 1991 г. (43) Государства-участники будут признавать в качестве НПО организации, объ- явившие себя таковыми, согласно соответствующим национальным процедурам, и будут содействовать созданию условий для свободной деятельности таких орга- низаций на своих территориях; в этих целях они будут (43.1) стремиться изыскивать возможности для дальнейшего улучшения усло- вий для контактов и обменов мнениями между НПО и соответствующими нацио- нальными органами и государственными учреждениями; (43.2) стремиться содействовать посещению их стран неправительственными организациями любого государства-участника с целью наблюдения за условиями в области человеческого измерения; (43.3) приветствовать деятельность НПО, включая, в частности, проверку выпол- нения обязательств в рамках СБСЕ в области человеческого измерения; (43.4) предоставлять НПО возможность, ввиду их важной роли в рамках челове- ческого измерения СБСЕ, доводить свои мнения до их собственных правительств и правительств всех других государств-участников во время будущей деятель- ности СБСЕ в области человеческого измерения. Стамбул 1999 г. (Хартия европейской безопасности: III. Наш общий ответ) 27. Неправительственные организации (НПО) могут играть чрезвычайно важ- ную роль в содействии утверждению прав человека, демократии и верховенс- тва закона. Они являются неотъемлемой составляющей сильного гражданского общества. Мы обязуемся расширять имеющиеся у НПО возможности вносить

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свой полновесный вклад в дальнейшее развитие гражданского общества и обес- печение прав человека и основных свобод. Маастрихт 2003 г. (Стратегия ОБСЕ по противодействию угрозам безопасности и стабильности в XXI веке) 36. (…) Основываясь на своих обязательствах в области человеческого измерения, ОБСЕ стремится поощрять повсюду в своем регионе создание условий, позволя- ющих всем в полной мере пользоваться своими правами человека и основными свободами под защитой эффективных демократических институтов, надлежащих судебных процедур и верховенства закона. Это включает обеспечение безопасной обстановки и соответствующих институтов для мирной дискуссии и выражения своих интересов всеми лицами и общественными группами. (…)

2.3.6 Содействие транспарентности, борьба с коррупцией и повышение эффективности управления государственными ресурсами Стамбул 1999 г. (Хартия европейской безопасности: III. Наш общий ответ) 33. Мы подтверждаем свою приверженность верховенству закона. Мы признаем, что коррупция представляет собой большую угрозу общим ценностям ОБСЕ. Она порождает нестабильность и затрагивает многие аспекты безопасности, экономи- ческого и человеческого измерений. Государства-участники обязуются наращи- вать свои усилия по борьбе с коррупцией и порождающими ее условиями, а также содействовать формированию позитивной основы для надлежащей практики государственного управления и должностной порядочности. Они будут лучше использовать существующие международные инструменты и оказывать взаим- ную помощь в борьбе с коррупцией. В рамках своих усилий по утверждению вер- ховенства закона ОБСЕ будет взаимодействовать с НПО, которые борются за фор- мирование атмосферы единодушного неприятия обществом и деловыми кругами коррупции. Маастрихт 2003 г. (Документ-стратегия ОБСЕ в области экономического и эколо- гического измерения) Содействие транспарентности и борьба с коррупцией 2.2.4 Транспарентность в государственных делах является одним из сущест- венно важных условий подотчетности государств и активного участия гражданс- кого общества в экономических процессах. Транспарентность повышает предска- зуемость и доверие к экономике, которая функционирует на основе адекватного законодательства и полного уважения верховенства закона. Важная роль в обес- печении такой транспарентности принадлежит свободным и плюралистичным средствам массовой информации, редакционная политика которых в максималь- ной степени независима от политического и финансового давления. 2.2.5 Мы будем повышать транспарентность наших государственных органов пос- редством дальнейшего развития процедур и институтов, предназначенных для предоставления средствам массовой информации, деловым кругам, гражданс-

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кому обществу и гражданам своевременной информации, включая надежные ста- тистические данные, по представляющим интерес для общества вопросам эко- номического и экологического характера, в целях создания условий для диалога между хорошо информированными сторонами, восприимчивыми к мнению друг друга. Это совершенно необходимо для принятия решений с учетом меняющихся условий, а также потребностей и пожеланий населения. 2.2.6 Транспарентность важна также для разоблачения и судебного преследова- ния всех видов коррупции, которая подрывает экономику и общество в наших странах. Помимо транспарентности борьба с коррупцией требует от государств- участников принятия комплексной долгосрочной стратегии в этой области. 2.2.7 Мы согласились сделать ликвидацию всех форм коррупции одной из при- оритетных задач. Мы рассмотрим вопрос о присоединении к международным конвенциям и другим правовым документам в области борьбы с коррупцией, в частности к тем, которые были разработаны Советом Европы и Организацией экономического сотрудничества и развития (ОЭСР), и будем поощрять их рати- фикацию и поддерживать их выполнение в полном объеме. Мы приветствуем принятие Конвенции ООН против коррупции и рассчитываем на ее скорейшее подписание, ратификацию и вступление в силу. Совершенствование управления государственными ресурсами 2.2.8 Еще одним компонентом надлежащего управления является эффективное управление государственными ресурсами с помощью крепких, отлаженно фун- кционирующих институтов, профессиональной и действенной государственной службы и рациональных бюджетных процедур. Надлежащее управление госу- дарственными ресурсами, включая сбор налогов, составление и исполнение бюд- жета и государственные закупки, особенно важно с точки зрения обеспечения наивысшего качества работы государственных и социальных служб. Мы будем стремиться заложить солидную финансовую основу для наших систем государс- твенного управления и добиваться дальнейшего повышения их эффективности и действенности на всех уровнях. София 2004 г. (Решения: Решение No. 11/04: Борьба с коррупцией) Совет министров, (…) признавая, что Конвенция Организации Объединенных Наций против корруп- ции, принятая 31 октября 2003 года Генеральной ассамблеей ООН в Нью Йорке, является крупным достижением в области международного сотрудничества по борьбе с коррупцией и создает возможность для глобальных действий по реше- нию этой проблемы, призывает государства-участники ОБСЕ, еще не сделавшие этого, в возможно краткие сроки подписать и ратифицировать Конвенцию Организации Объеди-

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ненных Наций против коррупции с целью ее скорого вступления в силу и выпол- нять ее в полном объеме; (…)

2.4 Верховенство закона

См. также: á I. 3: Ограничения и отступления á II. 3.1.4: Право не подвергаться произвольному аресту или лишению свободы á II. 3.1.5: Право на справедливое судебное разбирательство á II. 3.1.6: Право на эффективные средства правовой защиты

2.4.1 Общие положения Вена 1989 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) (13) (…) [Государства-участники] будут (…) (13.4) эффективно обеспечивать право лиц знать свои права и обязанности в этой области и поступать в соответствии с ними, и с этой целью публиковать и делать доступными все законы, административные правила и процедуры, относящиеся к правам человека и основным свободам. Копенгаген 1990 г. (2) [Государства-участники] преисполнены решимости поддерживать и разви- вать эти принципы справедливости, которые составляют основу правового госу- дарства. Они считают, что правовое государство означает не просто формальную законность, которая обеспечивает регулярность и последовательность в дости- жении и поддержании демократического порядка, но и справедливость, основан- ную на признании и полном принятии высшей ценности человеческой личности и гарантируемую учреждениями, образующими структуры, обеспечивающие ее наиболее полное выражение. (3) Они подтверждают, что демократия является неотъемлемым элементом пра- вового государства (…) (…) (5) Они торжественно заявляют, что к числу элементов справедливости, которые существенно необходимы для полного выражения достоинства, присущего чело- веческой личности, и равных и неотъемлемых прав всех людей относятся следу- ющие: (…) (5.3) обязанность правительства и государственных властей соблюдать конститу- цию и действовать совместимым с законом образом;

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(…) (5.5) деятельность правительства и администрации, а также судебных органов осуществляется в соответствии с системой, установленной законом. Уважение такой системы должно быть обеспечено; (…) (5.7) права человека и основные свободы будут гарантироваться законом и соот- ветствовать обязательствам по международному праву; (5.8) законы, принятые по завершении соответствующей гласной процедуры, и административные положения публикуются, что является условием их примене- ния. Эти тексты будут доступны для всех; (5.9) все люди равны перед законом и имеют право без какой бы то ни было дис- криминации на равную защиту со стороны закона. В этой связи закон запрещает любую дискриминацию и гарантирует всем лицам равную и эффективную защиту от дискриминации по какому бы то ни было признаку; (…) (5.15) каждое арестованное или задержанное по уголовному обвинению лицо имеет право, с тем, чтобы можно было вынести решение относительно закон- ности его ареста или задержания, быть в срочном порядке доставленным к судье или другому должностному лицу, уполномоченному законом осуществлять такую функцию; (…) (5.18) никто не будет обвинен, судим или осужден за какое-либо уголовное пре- ступление, если только оно не предусмотрено законом, который ясно и четко определяет элементы этого преступления; (5.19) каждый считается невиновным, пока виновность его не будет доказана согласно закону; (5.20) считая важным вклад международно-правовых инструментов в области прав человека в обеспечение верховенства закона на национальном уровне, госу- дарства-участники подтверждают, что они рассмотрят вопрос о присоединении к Международному пакту о гражданских и политических правах, к Международ- ному пакту об экономических, социальных и культурных правах и к другим соот- ветствующим международно-правовым инструментам, если они еще не сделали этого; (5.21) с тем, чтобы дополнить внутренние меры правовой защиты и лучше обес- печивать уважение государствами-участниками принятых на себя междуна- родных обязательств, государства-участники рассмотрят вопрос о присоедине- нии к региональной или универсальной международной конвенции, касающейся защиты прав человека, такой как Европейская конвенция о правах человека или Факультативный протокол к Международному пакту о гражданских и политичес-

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ких правах, которые предусматривают процедуры правовой защиты отдельных лиц в международных органах. (…) (12) Государства-участники, желая обеспечить большую открытость в выполне- нии обязательств, взятых на себя в разделе о человеческом измерении СБСЕ вен- ского Итогового документа, постановляют принять в качестве меры по укрепле- нию доверия присутствие наблюдателей, направляемых государствами-участни- ками, и представителей неправительственных организаций и других заинтересо- ванных лиц на судебных процессах, как это предусматривается в национальном законодательстве и международном праве; при этом понимается, что судебные процессы могут быть закрытыми (in camera) лишь при наличии обстоятельств, предписанных законом и соответствующих обязательствам по международному праву и международным обязательствам. (…) (24) Государства-участники будут обеспечивать, чтобы осуществление всех прав человека и основных свобод, изложенных выше, не могло быть объектом ника- ких ограничений, кроме тех, которые предусмотрены законом и соответствуют их обязательствам по международному праву, в частности по Международному пакту о гражданских и политических правах, и их международными обязатель- ствами, в частности по Всеобщей декларации прав человека. Эти ограничения носят характер исключений. Государства-участники будут обеспечивать, чтобы этими ограничениями не злоупотребляли и чтобы они применялись не произ- вольно, а так, чтобы обеспечивалось эффективное осуществление этих прав. Москва 1991 г. (18.1) Законодательство будет разрабатываться и приниматься в результате откры- того процесса, отражающего волю народа либо непосредственно, либо через избранных им представителей. (…) (27) Государства-участники (27.1) выражают намерение сотрудничать в областях, относящихся к государс- твенному, административному, торговому, гражданскому праву и праву социаль- ного обеспечения и в других соответствующих областях в целях развития право- вых систем, основанных на уважении прав человека, верховенстве закона и демок- ратии, особенно в тех государствах, где таких систем пока не существует; (27.2) в этих целях предусматривают продолжение и расширение двустороннего и многостороннего сотрудничества в области права и управления, в том числе по следующим направлениям: • создание эффективной административной системы; • содействие в разработке законов и положений;

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• подготовка персонала в области управления и права; • обмен научными работами и периодическими изданиями в области права. Будапешт 1994 г. (Решения: VIII. Человеческое измерение) 18. Государства-участники подчеркивают, что все действия органов государствен- ной власти должны соответствовать принципу верховенства закона, что служит гарантией правовой защищенности личности.

2.4.2 Независимость судей и адвокатов, беспристрастное функционирование государственной судебной службы Копенгаген 1990 г. (5) [Государства-участники] торжественно заявляют, что к числу элементов спра- ведливости, которые существенно необходимы для полного выражения досто- инства, присущего человеческой личности, и равных и неотъемлемых прав всех людей относятся следующие: (…) (5.12) независимость судей и беспристрастное функционирование государствен- ной судебной службы обеспечиваются; (5.13) независимость адвокатов признается и защищается, в частности в том, что касается условий их приема на работу и практики; Москва 1991 г. (19) Государства-участники (19.1) будут соблюдать международно признанные нормы, касающиеся независи- мости судей и юристов-практиков и беспристрастного функционирования госу- дарственной судебной службы, включая, в частности, Всеобщую декларацию прав человека и Международный пакт о гражданских и политических правах; (19.2) при осуществлении соответствующих норм и обязательств будут обеспечи- вать, чтобы независимость судебных органов была гарантирована и закреплена в конституции или законодательстве страны и соблюдалась на практике, обра- щая особое внимание на Основные принципы независимости судебной системы, в которых, в частности, предусматривается: (i) запрещение неправомерного влияния на судей; (ii) недопущение пересмотра судебных решений административными органами, за исключением прав компетентных властей в соответствии с законом умень- шать строгость приговоров, вынесенных судьями, или смягчать их; (iii) защита свободы слова и ассоциаций сотрудников судебных органов с учетом лишь таких ограничений, которые совместимы с осуществлением ими своих функций;

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(iv) обеспечение того, чтобы судьи обладали надлежащей квалификацией и под- готовкой и выбирались на недискриминационной основе; (v) обеспечение гарантии несменяемости и надлежащих условий службы, в том числе в вопросах продвижения по службе судей, где это применимо; (vi) соблюдение условий неприкосновенности; (vii) обеспечение того, чтобы дисциплинарные санкции, временное отстранение от должности и увольнение судей осуществлялось в соответствии с законом. (20) Для обеспечения независимости судебных органов государства-участники будут: (20.1) признавать важную роль, которую национальные и международные ассо- циации судей и адвокатов могут сыграть в деле обеспечения большего уважения независимости своих членов, а также образования и профессиональной подго- товки в вопросах роли судебных органов и юристов в обществе; (20.2) содействовать и способствовать диалогу, обменам и сотрудничеству между национальными ассоциациями и другими группами, заинтересованными в обес- печении уважения независимости судебных органов и защиты адвокатов; (20.3) сотрудничать между собой, в частности путем диалога, контактов и обме- нов, с целью выявления проблемных областей в вопросах защиты независимости судей и юристов-практиков и определения путей и средств рассмотрения и разре- шения таких проблем; (20.4) сотрудничать на постоянной основе в таких областях, как образование и профессиональная подготовка судей и юристов-практиков, а также разработка и принятие законодательства, направленного на обеспечение большего уваже- ния их независимости и беспристрастного функционирования государственной судебной службы. Стамбул 1999 г. (Хартия европейской безопасности: IV. Наши общие инстру- менты) 45. Мы будем также способствовать развитию независимых судебных систем, играющих ключевую роль в предоставлении правовой защиты от нарушений прав человека, а также оказывать консультационные услуги и помощь в реформи- ровании пенитенциарной системы. (…)

2.4.3 Отправление правосудия A. Правоохранительные органы Москва 1991 г. (21) Государства-участники будут (21.1) принимать все необходимые меры для обеспечения того, чтобы сотрудники правоохранительных органов при наведении общественного порядка действо- вали в общественных интересах, с учетом конкретных потребностей и законных

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целей, а также использовали соразмерные обстоятельствам методы и средства, не превышающие потребностей правоохранительных действий; (21.2) обеспечивать, чтобы правоохранительные действия подлежали судебному контролю, чтобы сотрудники правоохранительных органов несли ответствен- ность за такие действия и чтобы жертвы действий, квалифицированных как нару- шение вышеуказанных обязательств, могли в соответствии с национальным пра- вом требовать надлежащей компенсации. (22) Государства-участники примут необходимые меры для обеспечения того, чтобы в курс подготовки сотрудников правоохранительных органов включа- лись учебные предметы и информация относительно запрещения использования сотрудниками правоохранительных органов чрезмерной силы, а также соответс- твующие международные и национальные кодексы поведения. Будапешт 1994 г. (Решения: IV. Кодекс поведения, касающийся военно-полити- ческих аспектов безопасности) 37. Государства-участники не будут использовать вооруженные силы в целях огра- ничения мирного и законного осуществления прав человека и гражданских прав лицами, действующими в личном качестве либо в качестве представителей групп, или в целях лишения этих лиц их национальной, религиозной, культурной, язы- ковой или этнической самобытности. Стамбул 1999 г. (Хартия европейской безопасности: IV. Наши общие инстру- менты) 45. (…) ОБСЕ будет также работать с другими международными организациями с целью создания политических и правовых условий, позволяющих полиции выполнять свои задачи в соответствии с принципами демократии и верховенс- тва закона. Бухарест 2001 г. (Решения: Решение No. 9: Деятельность, связанная с полицейс- кими функциями) Совет министров, (…) подтверждая, что для утверждения верховенства закона и защиты демократичес- ких институтов необходима эффективная полицейская деятельность,; (…) 1. Постановляет, что при разработке планов деятельности ОБСЕ, связанной с полицейскими функциями, с целью противостояния новым вызовам безопас- ности и активизации полицейской деятельности ОБСЕ, направленной на предо- твращение конфликтов, регулирование кризисов и постконфликтное восстанов- ление, ОБСЕ будет: (…)

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• изучать и развивать роль работы по подготовке полицейских кадров, особенно комплексной, в создании полицейских служб, которые могли бы пользоваться доверием всего населения, а также в укреплении доверия; (…) B. Обращение с лицами, лишенными свободы Вена 1989 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) (23) Государства-участники будут: (23.1) обеспечивать, чтобы никто не подвергался произвольному аресту, содержа- нию под стражей или ссылке; (23.2) обеспечивать, чтобы со всеми лицами, содержащимися под стражей или в заключении, обращались гуманно и с уважением достоинства, присущего челове- ческой личности; (23.3) соблюдать принятые ООН минимальные стандартные правила обращения с заключенными, а также принятый ООН Кодекс поведения должностных лиц по поддержанию правопорядка; (23.4) запрещать пытки и другие виды жестокого, бесчеловечного или унижаю- щего человеческое достоинство обращения и наказания и принимать эффектив- ные законодательные, административные, судебные и другие меры по предотвра- щению такой практики и наказанию за нее; (23.5) рассматривать вопрос о присоединении к Конвенции против пыток и дру- гих жестоких, бесчеловечных или унижающих достоинство видов обращения или наказания, если они этого еще не сделали; (23.6) защищать лиц от любой психиатрической или другой медицинской прак- тики, которая нарушает права человека и основные свободы, и принимать эффек- тивные меры по предупреждению такой практики и наказанию за нее. (24) (…) В государствах-участниках, в которых смертная казнь не отменена, смерт- ный приговор может быть вынесен только за самые тяжкие преступления в соот- ветствии с законом, действовавшим в момент совершения преступления, и не вопреки их международным обязательствам. (…) Москва 1991 г. (23) Государства-участники будут обращаться со всеми лишенными свободы лицами гуманно и с уважением достоинства, присущего человеческой личности, и будут соблюдать международно признанные стандарты, относящиеся к отправ- лению правосудия и правам человека задержанных лиц. (23.1) Государства-участники будут обеспечивать, чтобы: (i) лицо могло быть лишено свободы лишь на таких основаниях и в соответс- твии с такими процедурами, какие установлены законом;

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(ii) любое лицо, подвергающееся аресту, было информировано без задержек на доступном ему языке о причине его ареста и любых выдвигаемых против него обвинениях; (iii) любое лишенное свободы лицо было без задержек информировано о его пра- вах в соответствии с национальным законодательством; (iv) любое арестованное или задерженное лицо имело право без задержек пред- стать перед судьей или другим должностным лицом, правомочным опреде- лять законность его ареста или задержания, и чтобы в случае незаконного ареста оно было безотлагательно освобождено; (v) любое лицо, обвиненное в совершении уголовного преступления, имело право защищать себя самостоятельно или с помощью адвоката по его собственному выбору или в том случае, если это лицо не располагает достаточными средс- твами для оплаты услуг адвоката, чтобы эти услуги были предоставлены ему бесплатно, когда того требуют интересы справедливости; (vi) любое арестованное или задерженное лицо имело право без неоправданных задержек уведомить или просить компетентный орган уведомить соответс- твующих лиц по его выбору о его аресте, задержании, тюремном заключении и месте нахождения; любые ограничения в осуществлении этого права будут устанавливаться законом и соответствовать международным стандартам; (vii) были приняты, если этого еще не сделано, эффективные меры по обеспече- нию того, чтобы содержание под стражей или заключение не использовалось правоохранительными органами в целях принуждения лица к признанию, самооговору или даче показаний против другого лица; (viii) продолжительность любого допроса и перерывов между допросами заноси- лась в протокол и удостоверялась в соответствии с национальным правом; (ix) задерженное лицо или его адвокат имели право заявить ходатайство или жалобу по поводу обращения с ним, в частности в случае пыток или дру- гого жестокого, бесчеловечного или унижающего достоинство обращения, в органы, ответственные за управление местом содержания под стражей, и в вышестоящие инстанции, а в случае необходимости — соответствующему органу, обладающему надзорными или иными полномочиями по исправле- нию положения; (х) такое ходатайство или жалоба оперативно рассматривались и без необосно- ванной задержки на них давался ответ; в случае отклонения ходатайства или жалобы или в случае неправомерной задержки заявитель будет иметь право обратиться с ней в судебный или другой орган; ни задержанное или находя- щееся в заключении лицо, ни любой другой заявитель не должны пострадать в связи с обращением с ходатайством или жалобой; (xi) любое лицо, ставшее жертвой незаконного ареста или задержания, имело обеспеченное судебной защитой право требовать компенасации.

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(23.2) Государства-участники будут (i) стремиться принимать необходимые меры для улучшения условий, в которых находятся лица, содержащиеся под стражей или в заключении; (ii) обращать особое внимание на проблему альтернатив тюремному заключению.

2.4.4 Выполнение международных обязательств Хельсинки 1975 г. (Вопросы, относящиеся к безопасности в Европе: 1. (a) Декла- рация принципов, которыми государства-участники будут руководствоваться во взаимных отношениях; Принцип X) Х. Добросовестное выполнение обязательств по международному праву Государства-участники будут добросовестно выполнять свои обязательства по международному праву, как и те обязательства, которые вытекают из общепри- знанных принципов и норм международного права, так и те обязательства, кото- рые вытекают из соответствующих международному праву договоров или других соглашений, участниками которых они являются. При осуществлении своих суверенных прав, включая право устанавливать свои законы и административные правила, они будут сообразовываться со своими юридическими обязательствами по международному праву; они будут, кроме того, учитывать должным образом и выполнять положения Заключительного акта Совещания по безопасности и сотрудничеству в Европе. Государства-участники подтверждают, что в том случае, когда обязательства чле- нов Организации Объединенных Наций по Уставу Организации Объединенных Наций окажутся в противоречии с их обязательствами по какому-либо договору или другому международному соглашению, преимущественную силу имеют их обязательства по Уставу, в соответствии со статьей 103 Устава ООН.

108 Обязательства ОБСЕ в области человеческого измерения 3. Обязательства по правам человека, принадлежащим каждому человеку

3.1 Гражданские и политические права

3.1.1 Общие положения Хельсинки 1975 г. (Вопросы, относящиеся к безопасности в Европе: 1. (a) Декла- рация принципов, которыми государства-участники будут руководствоваться во взаимных отношениях; Принцип VII) VII. Уважение прав человека и основных свобод, включая свободу мысли, совести, религии и убеждений (…) [Государства-участники] будут поощрять и развивать эффективное осуществле- ние гражданских, политических (…) и других прав и свобод, которые все выте- кают из достоинства, присущего человеческой личности, и являются существен- ными для ее свободного и полного развития. Мадрид 1983 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) [Государства-участники] равным образом подчеркивают свою решимость совер- шенствовать свои законы и административные правила в области гражданских, политических (…) и других прав человека и основных свобод; они также подчер- кивают свою решимость обеспечивать эффективное осуществление этих прав и свобод. Вена 1989 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) (12) [Государства-участники] (…) признают, что все гражданские, политические (…) и другие права и свободы имеют первостепенное значение и должны полно- стью осуществляться всеми надлежащими способами. (13) В этой связи они будут: (…)

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(13.2) рассматривать вопрос о присоединении к Международному пакту о граж- данских и политических правах (…) Факультативному протоколу к Пакту о граж- данских и политических правах и другим соответствующим международным инструментам, если они этого еще не сделали; (…)

3.1.2 Право на жизнь/отмена смертной казни Вена 1989 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) (24) В том, что касается вопроса о смертной казни, государства-участники отме- чают, что в некоторых из них смертная казнь была отменена. В государствах-учас- тниках, в которых смертная казнь не отменена, смертный приговор может быть вынесен только за самые тяжкие преступления в соответствии с законом, дейс- твовавшим в момент совершения преступления, и не вопреки их международным обязательствам. Этот вопрос будет оставаться на рассмотрении. В этом контексте государства-участники будут сотрудничать в рамках соответствующих междуна- родных организаций. Копенгаген 1990 г. (17) Государства-участники (…) (17.2) напоминают в этом контексте о принятии Генеральной Ассамблеей Органи- зации Объединенных Наций 15 декабря 1989 года второго Факультативного про- токола к Международному пакту о гражданских и политических правах, имею- щего целью отмену смертной казни; (17.3) отмечают ограничения и гарантии в отношении применения смертной казни, которые были приняты международным сообществом, в частности в ста- тье 6 Международного пакта о гражданских и политических правах; (17.4) отмечают положения шестого Протокола к Европейской конвенции о защите прав человека и основных свобод, касающиеся отмены смертной казни; (17.5) отмечают принятые в последнее время рядом государств-участников меры по отмене смертной казни; (17.6) отмечают деятельность некоторых неправительственных организаций по вопросу о смертной казни; (17.7) будут обмениваться информацией в рамках Конференции по человеческому измерению по вопросу об отмене смертной казни и продолжать рассматривать этот вопрос; (17.8) будут предоставлять общественности информацию относительно примене- ния смертной казни.

110 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I I Гражданские и политические права

3.1.3 Запрет пыток и другого жестокого, бесчеловечного или унижающего достоинство обращения или наказания Вена 1989 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) (23) Государства-участники будут: (…) (23.2) обеспечивать, чтобы со всеми лицами, содержащимися под стражей или в заключении, обращались гуманно и с уважением достоинства, присущего челове- ческой личности; (23.3) соблюдать принятые ООН минимальные стандартные правила обращения с заключенными, а также принятый ООН Кодекс поведения должностных лиц по поддержанию правопорядка; (23.4) запрещать пытки и другие виды жестокого, бесчеловечного или унижаю- щего человеческое достоинство обращения и наказания и принимать эффектив- ные законодательные, административные, судебные и другие меры по предотвра- щению такой практики и наказанию за нее; (23.5) рассматривать вопрос о присоединении к Конвенции против пыток и дру- гих жестоких, бесчеловечных или унижающих достоинство видов обращения или наказания, если они этого еще не сделали; (23.6) защищать лиц от любой психиатрической или другой медицинской прак- тики, которая нарушает права человека и основные свободы, и принимать эффек- тивные меры по предупреждению такой практики и наказанию за нее. Копенгаген 1990 г. (16) Государства-участники (…) (16.2) намереваются в срочном порядке рассмотреть вопрос о присоединении к Конвенции против пыток и других жестоких, бесчеловечных или унижающих достоинство видов обращения и наказания, если они еще не сделали этого, и при- знании компетенции Комитета против пыток в соответствии со статьями 21 и 22 Конвенции и снятии оговорок относительно компетенции Комитета в соответс- твии со статьей 20; (16.3) подчеркивают, что никакие исключительные обстоятельства, будь то состо- яние войны или угроза войны, внутренняя политическая нестабильность или любое другое чрезвычайное положение, не могут служить оправданием пыток; (16.4) будут обеспечивать, чтобы образование и информация относительно запре- щения пыток полностью включались в подготовку работников гражданских и военных правоохранительных органов медицинского персонала, государствен- ных служащих и других лиц, которые могут иметь дело с содержанием под стра-

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жей, ведением допроса или обращением с любым лицом, подвергшимся какой- либо форме ареста, задержания или тюремного заключения; (16.5) будут систематически рассматривать правила, инструкции, методы и прак- тику ведения допроса, а также условия содержания под стражей и обращения с лицами, подвергшимися какой-либо форме ареста, задержания или тюремного заключения на любой территории под их юрисдикцией, с тем, чтобы не допустить каких-либо случаев пыток; (16.6.) будут в первоочередном порядке принимать для рассмотрения и прове- дения надлежащих действий, отвечающих согласованным мерам и процедурам эффективного выполнения обязательств, относящихся к человеческому измере- нию СБСЕ, любые случаи пыток и других бесчеловечных или унижающих досто- инство видов обращения и наказания, о которых им стало известно по официаль- ным каналам или из какого-либо иного надежного источника информации; (16.7) будут действовать при том понимании, что сохранение и гарантия жизни и безопасности любого лица, подвергающегося какой-либо форме пыток и дру- гих бесчеловечных или унижающих человеческое достоинство видов обращения и наказания, будет единственным критерием при определении срочности и пер- воочередности при применении надлежащих средств для исправления положе- ния; и поэтому рассмотрение любых случаев пыток и других бесчеловечных или унижающих достоинство видов обращения и наказания в рамках любого другого международного органа или механизма не может служить основанием для того, чтобы воздержаться от рассмотрения и проведения надлежащих действий в соот- ветствии с согласованными мерами и процедурами эффективного выполнения обязательств, относящихся к человеческому измерению СБСЕ. Париж 1990 г. (Новая эра демократии, мира и единства) Мы подтверждаем, что без какой-либо дискриминации (…) никто не будет: (…) подвергаться пыткам или другим видам жестокого, бесчеловечного или унижаю- щего человеческое достоинство обращения и наказания; (…) Москва 1991 г. (23.1) Государства-участники будут обеспечивать, чтобы: (…) (vii) были приняты, если этого еще не сделано, эффективные меры по обеспече- нию того, чтобы содержание под стражей или заключение не использовалось пра-

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воохранительными органами в целях принуждения лица к признанию, самоого- вору или даче показаний против другого лица; (viii) продолжительность любого допроса и перерывов между допросами заноси- лась в протокол и удостоверялась в соответствии с национальным правом; (ix) задерженное лицо или его адвокат имели право заявить ходатайство или жалобу по поводу обращения с ним, в частности в случае пыток или другого жес- токого, бесчеловечного или унижающего достоинство обращения, в органы, ответственные за управление местом содержания под стражей, и в вышестоящие инстанции, а в случае необходимости — соответствующему органу, обладающему надзорными или иными полномочиями по исправлению положения; (х) такое ходатайство или жалоба оперативно рассматривались и без необосно- ванной задержки на них давался ответ; в случае отклонения ходатайства или жалобы или в случае неправомерной задержки заявитель будет иметь право обра- титься с ней в судебный или другой орган; ни задержанное или находящееся в заключении лицо, ни любой другой заявитель не должны пострадать в связи с обращением с ходатайством или жалобой; (…) Будапешт 1994 г. (Решения: VIII. Человеческое измерение) 20. Государства-участники решительно осуждают все формы пыток как одно из грубейших нарушений прав человека и человеческого достоинства. Они обязу- ются вести дело к их искоренению. Они признают важность в этом отношении международных норм, закрепленных в международных договорах о правах чело- века, в частности в Конвенции ООН против пыток и других жестоких, бесчело- вечных или унижающих достоинство видов обращения и наказания, а также в Европейской конвенции о предотвращении пыток и бесчеловечного или унижаю- щего достоинство обращения и наказания. Они также признают важность наци- онального законодательства, направленного на искоренение пыток. Они обязу- ются расследовать все заявления о случаях применения пыток и преследовать виновных в судебном порядке. Они, кроме того, обязуются включать в свои про- граммы обучения и подготовки личного состава сил по поддержанию правопо- рядка и полиции конкретные положения, имеющие целью искоренение пыток. Они считают, что существенно необходимым условием является обмен инфор- мацией по данной проблеме. Государства-участники должны иметь возможность получать такую информацию. В этом контексте СБСЕ следует также опираться на опыт Специального докладчика по вопросам пыток и других жестоких, бес- человечных или унижающих достоинство видов обращения и наказания, назна- ченного Комиссией ООН по правам человека, а также использовать информацию, предоставляемую неправительственными организациями. Стамбул 1999 г. (Хартия европейской безопасности: III. Наш общий ответ) 21. Мы твердо намерены искоренить пытки, а также жестокие и бесчеловеч- ные или унижающие достоинство виды обращения и наказания во всем регионе

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ОБСЕ. С этой целью мы будем поощрять принятие законодательства, обеспечива- ющего процедурные и существенные гарантии и средства для борьбы с подобной практикой. Мы будем в той мере, в какой это целесообразно, оказывать помощь потерпевшим и сотрудничать с соответствующими международными организа- циями и неправительственными организациями.

3.1.4 Право не подвергаться произвольному аресту или лишению свободы См. также: á II. 2.4.1: Верховенство закона > Общие положения á II. 2.4.3 B: Обращение с лицами, лишенными свободы á II. 3.1.3: Запрет пыток и другого жестокого, бесчеловечного или унижающего достоинство обращения или наказания á II. 3.1.5: Право на справедливое судебное разбирательство á II. 3.1.6: Право на эффективные средства правовой защиты

Вена 1989 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) (23) Государства-участники будут: (23.1) обеспечивать, чтобы никто не подвергался произвольному аресту, содержа- нию под стражей или ссылке; (…) Копенгаген 1990 г. (5.15) каждое арестованное или задержанное по уголовному обвинению лицо имеет право, с тем, чтобы можно было вынести решение относительно закон- ности его ареста или задержания, быть в срочном порядке доставленным к судье или другому должностному лицу, уполномоченному законом осуществлять такую функцию; (…) Москва 1991 г. (23.1) Государства-участники будут обеспечивать, чтобы: (i) лицо могло быть лишено свободы лишь на таких основаниях и в соответствии с такими процедурами, какие установлены законом; (ii) любое лицо, подвергающееся аресту, было информировано без задержек на доступном ему языке о причине его ареста и любых выдвигаемых против него обвинениях; (iii) любое лишенное свободы лицо было без задержек информировано о его пра- вах в соответствии с национальным законодательством; (iv) любое арестованное или задерженное лицо имело право без задержек пред- стать перед судьей или другим должностным лицом, правомочным определять

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законность его ареста или задержания, и чтобы в случае незаконного ареста оно было безотлагательно освобождено; (v) любое лицо, обвиненное в совершении уголовного преступления, имело право защищать себя самостоятельно или с помощью адвоката по его собственному выбору или в том случае, если это лицо не располагает достаточными средствами для оплаты услуг адвоката, чтобы эти услуги были предоставлены ему бесплатно, когда того требуют интересы справедливости; (vi) любое арестованное или задерженное лицо имело право без неоправданных задержек уведомить или просить компетентный орган уведомить соответствую- щих лиц по его выбору о его аресте, задержании, тюремном заключении и месте нахождения; любые ограничения в осуществлении этого права будут устанавли- ваться законом и соответствовать международным стандартам; (vii) были приняты, если этого еще не сделано, эффективные меры по обеспече- нию того, чтобы содержание под стражей или заключение не использовалось пра- воохранительными органами в целях принуждения лица к признанию, самоого- вору или даче показаний против другого лица; (viii) продолжительность любого допроса и перерывов между допросами заноси- лась в протокол и удостоверялась в соответствии с национальным правом; (ix) задерженное лицо или его адвокат имели право заявить ходатайство или жалобу по поводу обращения с ним, в частности в случае пыток или другого жес- токого, бесчеловечного или унижающего достоинство обращения, в органы, ответственные за управление местом содержания под стражей, и в вышестоящие инстанции, а в случае необходимости — соответствующему органу, обладающему надзорными или иными полномочиями по исправлению положения; (х) такое ходатайство или жалоба оперативно рассматривались и без необосно- ванной задержки на них давался ответ; в случае отклонения ходатайства или жалобы или в случае неправомерной задержки заявитель будет иметь право обра- титься с ней в судебный или другой орган; ни задержанное или находящееся в заключении лицо, ни любой другой заявитель не должны пострадать в связи с обращением с ходатайством или жалобой; (xi) любое лицо, ставшее жертвой незаконного ареста или задержания, имело обеспеченное судебной защитой право требовать компенасации.

3.1.5 Право на справедливое судебное разбирательство См. также: á II. 2.4: Верховенство закона á II. 3.1.4: Право не подвергаться произвольному аресту или лишению свободы á II. 3.1.6: Право на эффективные средства правовой защиты

Вена 1989 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) (13) [Государства-участники] (…) будут:

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(…) (13.9) обеспечивать, чтобы эффективные средства правовой защиты, а также пол- ная информация о них были доступны тем, кто заявляет, что их права человека и основные свободы были нарушены; они будут, в частности, эффективно приме- нять следующие средства правовой защиты: • право лица апеллировать к исполнительным, законодательным, судебным или административным органам; • право на справедливое и публичное разбирательство в разумные сроки в неза- висимом и беспристрастном суде, включая право выдвигать юридическую аргу- ментацию и быть представленным адвокатом по своему выбору; • право быть быстро и официально уведомленным о решении, принятом по любой апелляции, включая юридические основания, на которых основывалось реше- ние. Эта информация будет предоставляться, как правило, в письменной форме и во всяком случае так, чтобы позволить лицу эффективно воспользоваться дру- гими доступными средствами правовой защиты. Копенгаген 1990 г. (5) [Государства-участники] торжественно заявляют, что к числу элементов спра- ведливости, которые существенно необходимы для полного выражения досто- инства, присущего человеческой личности, и равных и неотъемлемых прав всех людей относятся следующие: (…) (5.12) независимость судей и беспристрастное функционирование государствен- ной судебной службы обеспечиваются; (5.13) независимость адвокатов признается и защищается, в частности в том, что касается условий их приема на работу и практики; (5.14) нормы, касающиеся уголовного процесса, будут содержать четкое определе- ние компетенции в отношении разбирательства и мер, которые предшествуют и сопровождают такое разбирательство; (5.15) каждое арестованное или задержанное по уголовному обвинению лицо имеет право, с тем, чтобы можно было вынести решение относительно закон- ности его ареста или задержания, быть в срочном порядке доставленным к судье или другому должностному лицу, уполномоченному законом осуществлять такую функцию; (5.16) каждый человек имеет право при рассмотрении любого предъявленного ему уголовного обвинения или при определении его прав и обязанностей в каком- либо гражданском процессе на справедливое и открытое разбирательство ком- петентным, независимым и беспристрастным судом, созданным на основании закона;

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(5.17) любое лицо, преследуемое в судебном порядке, имеет право защищать себя лично или без промедления через посредство выбранного им самим защитника, или, если это лицо не располагает достаточными средствами для оплаты услуг защитника, на безвозмездное получение таких услуг, когда этого требуют инте- ресы правосудия; (5.18) никто не будет обвинен, судим или осужден за какое-либо уголовное пре- ступление, если только оно не предусмотрено законом, который ясно и четко определяет элементы этого преступления; (5.19) каждый считается невиновным, пока виновность его не будет доказана согласно закону; (…) (12) Государства-участники, желая обеспечить большую открытость в выполне- нии обязательств, взятых на себя в разделе о человеческом измерении СБСЕ вен- ского Итогового документа, постановляют принять в качестве меры по укрепле- нию доверия присутствие наблюдателей, направляемых государствами-участни- ками, и представителей неправительственных организаций и других заинтересо- ванных лиц на судебных процессах, как это предусматривается в национальном законодательстве и международном праве; при этом понимается, что судебные процессы могут быть закрытыми (in camera) лишь при наличии обстоятельств, предписанных законом и соответствующих обязательствам по международному праву и международным обязательствам.

3.1.6 Право на эффективные средства правовой защиты См. также: á II. 2.4: Верховенство закона á II. 3.1.4: Право не подвергаться произвольному аресту или лишению свободы á II. 3.1.5: Право на справедливое судебное разбирательство

Вена 1989 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) (13) [Государства-участники] (…) будут: (…) (13.9) обеспечивать, чтобы эффективные средства правовой защиты, а также пол- ная информация о них были доступны тем, кто заявляет, что их права человека и основные свободы были нарушены; они будут, в частности, эффективно приме- нять следующие средства правовой защиты: • право лица апеллировать к исполнительным, законодательным, судебным или административным органам; • право на справедливое и публичное разбирательство в разумные сроки в неза- висимом и беспристрастном суде, включая право выдвигать юридическую аргу- ментацию и быть представленным адвокатом по своему выбору;

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• право быть быстро и официально уведомленным о решении, принятом по любой апелляции, включая юридические основания, на которых основывалось реше- ние. Эта информация будет предоставляться, как правило, в письменной форме и во всяком случае так, чтобы позволить лицу эффективно воспользоваться дру- гими доступными средствами правовой защиты. Копенгаген 1990 г. (5) [Государства-участники] торжественно заявляют, что к числу элементов спра- ведливости, которые существенно необходимы для полного выражения досто- инства, присущего человеческой личности, и равных и неотъемлемых прав всех людей относятся следующие: (…) (5.10) каждый человек будет обладать эффективными средствами правовой защиты против административных решений, с тем, чтобы гарантировалось ува- жение основных прав и обеспечивалось ненанесение ущерба правовой системе; (5.11) административные решения, направленные против какого-либо лица, будут полностью обоснованными и должны, как правило, содержать указание на имею- щиеся обычные средства правовой защиты; (…) (5.21) с тем, чтобы дополнить внутренние меры правовой защиты и лучше обес- печивать уважение государствами-участниками принятых на себя междуна- родных обязательств, государства-участники рассмотрят вопрос о присоедине- нии к региональной или универсальной международной конвенции, касающейся защиты прав человека, такой как Европейская конвенция о правах человека или Факультативный протокол к Международному пакту о гражданских и политичес- ких правах, которые предусматривают процедуры правовой защиты отдельных лиц в международных органах. (…) (11) Государства-участники заявляют далее, что в случаях, когда, как утверж- дается, имело место нарушение прав человека и основных свобод, имеющиеся эффективные средства правовой защиты включают (11.1) право отдельного лица запрашивать и получать адекватную юридическую помощь; (11.2) право отдельного лица запрашивать и получать помощь от других в защите прав человека и основных свобод и помогать другим в защите прав человека и основных свобод; (11.3) право отдельных лиц или групп, действующих от их имени, поддерживать связь с международными органами, наделенными компетенцией получать и рас- сматривать информацию, касающуюся утверждений о нарушении прав человека. (…)

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(40) Государства-участники (…) (…) (40.5) будут признавать право каждого лица на эффективные средства правовой защиты и будут стремиться признавать, в соответствии с национальным законо- дательством, право заинтересованных лиц и групп выступать с жалобами и под- держивать жалобы по поводу актов дискриминации, включая акты расизма и ксе- нофобии. Париж 1990 г. (Новая эра демократии, мира и единства) Мы будем обеспечивать, чтобы каждый человек пользовался доступом к эффек- тивным средствам правовой защиты, национальным или международным, про- тив любого нарушения его прав. Москва 1991 г. (18.2) Каждый человек будет обладать эффективными средствами правовой защиты от административных решений, с тем, чтобы гарантировалось уважение основных прав и обеспечивалось ненанесение ущерба правовой системе. (18.3) С этой же целью будут предусмотрены эффективные средства правовой защиты для лиц, понесших ущерб в результате действия административных положений. (18.4) Государства-участники будут стремиться обеспечить судебный контроль за такими положениями и решениями.

3.1.7 Отказ от военной службы по убеждениям совести и альтернативная служба Копенгаген 1990 г. (18) Государства-участники (18.1) отмечают, что Комиссия по правам человека Организации Объединенных Наций признала право каждого отказываться от военной службы по убеждениям совести; (18.2) отмечают меры, принятые в последнее время рядом государств-участников, с тем, чтобы разрешать освобождать от обязательной военной службы на основа- нии отказа по убеждениям совести; (18.3) отмечают деятельность некоторых неправительственных организаций в связи с отказом от обязательной военной службы по убеждениям совести; (18.4) соглашаются рассмотреть вопрос о введении, где это еще не было сде- лано, различных форм альтернативной службы, которые совместимы с мотивами отказа по убеждениям совести, причем такие формы альтернативной службы в принципе не будут связаны со службой в боевых частях или будут иметь граждан- ский характер, будут общественно полезными и не будут носить характера какого- либо наказания;

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(18.5) сделать информацию по этому вопросу доступной общественности; (18.6) оставят на рассмотрении в рамках Конференции по человеческому изме- рению соответствующие вопросы, связанные с освобождением от обязательной военной службы, где таковая существует, отдельных лиц на основании отказа от службы в вооруженных силах по убеждениям совести и будут обмениваться информацией по этим вопросам. Будапешт 1994 г. (Решения: IV. Кодекс поведения, касающийся военно-полити- ческих аспектов безопасности) 28. Государства-участники будут отражать в своих законах или других соответс- твующих документах права и обязанности личного состава вооруженных сил. Они рассмотрят вопрос о введении практики освобождения от военной службы или прохождения альтернативной службы.

3.1.8 Свобода мысли, совести, религии или убеждений Хельсинки 1975 г. (Вопросы, относящиеся к безопасности в Европе: 1. (a) Декла- рация принципов, которыми государства-участники будут руководствоваться во взаимных отношениях; Принцип VII) VII. Уважение прав человека и основных свобод, включая свободу мысли, совести, религии и убеждений Государства-участники будут уважать права человека и основные свободы, вклю- чая свободу мысли, совести, религии и убеждений, для всех, без различия расы, пола, языка и религии. (…) В этих рамках государства-участники будут признавать и уважать свободу лич- ности исповедовать, единолично или совместно с другими, религию или веру, действуя согласно велению собственной совести. Хельсинки 1975 г. (Сотрудничество в гуманитарных и других областях) [Государства-участники] подтверждают, что религиозные культы, учреждения и организации, действующие в конституционных рамках государств-участников, и их представители могут в сфере их деятельности осуществлять между ними кон- такты и встречи и обмениваться информацией. Мадрид 1983 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) Государства-участники подтверждают, что они будут признавать, уважать и, кроме того, соглашаются принимать меры, необходимые для обеспечения свободы лич- ности исповедовать, единолично или совместно с другими, религию или веру, действуя согласно велению собственной совести. В этом контексте они будут проводить консультации во всех случаях, когда это необходимо, с религиозными культами, учреждениями и организациями, кото- рые действуют в конституционных рамках своих стран.

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Они будут благожелательно рассматривать ходатайства религиозных объедине- ний верующих, исповедующих или готовых исповедовать свою веру в конститу- ционных рамках своих государств, о предоставлении статуса, предусматривае- мого в их странах для религиозных культуов, учреждений и организаций. Вена 1989 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) (16) С целью обеспечить свободу личности и исповедовать религию или веру госу- дарства-участники будут, среди прочего: (16.1) принимать эффективные меры по предотвращению и ликвидации дискри- минации лиц или объединений на почве религии или убеждений в отношении признания, осуществления и пользования правами человека и основными свобо- дами во всех областях гражданской, политической, экономической, социальной и культурной жизни и по обеспечению действительного равенства между верую- щими и неверующими; (16.2) способствовать климату взаимной терпимости и уважения между верую- щими различных объединений, а также между верующими и неверующими; (16.3) предоставлять по их просьбе объединениям верующих, исповедующих или готовых исповедовать свою веру в конституционных рамках своих государств, признание статуса, предусмотренного для них в их соответствующих странах; (16.4) уважать право этих религиозных объединений: • основывать и содержать свободно доступные места богослужений или собра- ний; • организовываться в соответствии со своей собственной иерархической и инсти- туционной структурой; • выбирать, назначать и заменять свой персонал согласно своим соответствую- щим требованиям и стандартам, а также любым свободно достигнутым догово- ренностям между ними их государством; • испрашивать и получать добровольные финансовые и другие пожертвования; (16.5) вступать в консультации с религиозными культами, учреждениями и орга- низациями с целью достижения лучшего понимания потребностей религиозных свобод; (16.6) уважать право каждого давать и получать религиозное образование на языке по своему выбору или индивидуально, или совместно с другими; (16.7) в этом контексте уважать, среди прочего, свободу родителей обеспечивать религиозное и нравственное воспитание своих детей в соответствии со своими собственными убеждениями; (16.8) разрешать подготовку религиозного персонала в соответствующих заведе- ниях;

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(16.9) уважать право верующих и религиозных объединений приобретать и использовать священные книги, религиозные издания на языке по своему выбору и другие предметы и материалы, относящиеся к исповедованию религии или веры, и владеть ими; (16.10) разрешать религиозным культам, учреждениям и организациям произво- дить, импортировать и распространять религиозные издания и материалы; (16.11) благожелательно рассматривать заинтересованность религиозных объеди- нений в участии в общественном диалоге, в том числе через средства массовой информации. (17) Государства-участники признают, что осуществление вышеупомянутых прав, относящихся к свободе религии или убеждений, может подлежать лишь таким ограничениям, которые установлены законом и совместимы с их обязательс- твами по международному праву и их международными обязательствами. Они будут обеспечивать в своих законах и административных правилах и при их при- менении полное и эффективное осуществление свободы мысли, совести, религии или убеждений. (…) Вена 1989 г. (Сотрудничество в гуманитарных и других областях) (32) Они будут разрешать верующим, религиозным культам и их представителям, на групповой или индивидуальной основе, устанавливать и поддерживать пря- мые личные контакты и общение друг с другом в их собственных и других стра- нах, в частности посредством поездок, паломничества и участия в собраниях и других религиозных мероприятиях. В этом контексте и в той мере, в которой это соизмеримо с такими контактами и мероприятиями, тем, о ком идет речь, будет разрешаться приобретать, получать и везти с собой религиозные публикации и предметы культа, относящиеся к исповедованию их религии или веры. Копенгаген 1990 г. Государства-участники подтверждают, что (9.4) каждый человек имеет право на свободу мысли, совести и религии. Это право включает свободу менять религию или убеждения и свободу исповедовать свою религию или веру как индивидуально, так и совместно с другими, публично или частным образом путем отправления культа, обучения и выполнения рели- гиозных и ритуальных обрядов. Осуществление этих прав подлежит лишь таким ограничениям, которые предписаны законом и соответствуют международным стандартам; (…) (32) (…) Лица, принадлежащие к национальным меньшинствам, имеют право сво- бодно выражать, сохранять и развивать свою этническую культурную, языко- вую или религиозную самобытность и поддерживать и развивать свою культуру

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во всех ее аспектах, не подвергаясь каким-либо попыткам ассимиляции вопреки своей воли. В частности, они имеют право: (…) (32.3) исповедовать свою религию, в том числе приобретать, обладать и исполь- зовать религиозные материалы и осуществлять религиозную деятельность в области образования на своем родном языке; (…) Будапешт 1994 г. (Решения: VIII. Человеческое измерение) 27. Вновь подтверждая свое обязательство обеспечивать свободу совести и рели- гии и способствовать созданию климата взаимной терпимости и уважения между верующими различных общин, а также между верующими и неверующими, они выразили озабоченность в связи с использованием религии в агрессивных наци- оналистических целях. Маастрихт 2003 г. (Решения: Решение No. 4/03: Толерантность и недискримина- ция) 9. Заявляет о важности свободы мысли, совести, религии и убеждений и осуж- дает любую дискриминацию и насилие, в том числе против любых религиозных групп или отдельных верующих. Обязуется обеспечивать и поощрять свободу личности исповедывать и практиковать, единолично или совместно с другими, религию или веру — при необходимости посредством транспарентных и недис- криминационных законов, правил, практики и политики. Рекомендует государс- твам-участникам обращаться за помощью к БДИПЧ и его группе экспертов по вопросам свободы религии и убеждений. Подчеркивает важность продолжения и укрепления межконфессионального и межкультурного диалога в интересах боль- шей толерантности, взаимного уважения и взаимопонимания.

3.1.9 Свобода объединения и право на проведение мирных собраний Мадрид 1983 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) Государства-участники будут обеспечивать право трудящихся свободно создавать и вступать в профессиональные союзы, право профессиональных союзов сво- бодно осуществлять свою деятельность и другие права, как они изложены в соот- ветствующих международных актах. Они отмечают, что эти права будут осущест- вляться при соблюдении законодательства государства и в соответствии с обя- зательствами государства по международному праву. Они будут поощрять долж- ным образом прямые контакты и связь между такими профессиональными сою- зами и их представителями. София 1989 г. (Преамбула) Государства-участники вновь заявляют о своем уважении права отдельных лиц, групп и организаций, занимающихся проблемами окружающей среды, свободно выражать свои мнения, объединяться с другими, проводить мирные собрания,

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а также получать, публиковать и распространять информациию об этих пробле- мах, без правовых и административных препятствии, несовместимых с положе- ниями СБСЕ. Эти отдельные лица, группы и организации имеют право участво- вать в публичном обсуждении проблем окружающей среды, а также устанавли- вать и поддерживать прямые и независимые контакты на национальном и между- народном уровнях. Бонн 1990 г. (Преамбула) Государства-участники, (…) признавая взаимосвязь политического плюрализма и рыночной экономики и будучи приверженными принципам, касающимся: (…) • экономической деятельности, которая соответственно утверждает человеческое достоинство и свободна от (…) лишения трудящихся права свободно создавать независимые профсоюзы или вступать в них; (…) Копенгаген 1990 г. (7) (…) государства-участники (…) (7.6) уважают право отдельных лиц и групп лиц создавать в условиях полной сво- боды свои политические партии или другие политические организации (…) (…) (9) Государства-участники подтверждают, что (…) (9.2) каждый человек имеет право на мирные собрания и демонстрации. Любые ограничения, которые могут быть установлены в отношении осуществления этих прав, предписываются законом и соответствуют международным стандартам; (9.3) право на ассоциацию гарантируется. Право создавать и, в зависимости от общего права профсоюза определять свое членство, свободно вступать в про- фсоюз, гарантируется. Эти права исключают любой предварительный контроль. Свобода ассоциации для рабочих, включая свободу забастовок, гарантируется с ограничениями, предписанными законом и соответствующими международным стандартам; (…) (10) (…) государства-участники заявляют о своем обязательстве:

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(…) (10.3) обеспечивать, чтобы отдельным лицам было разрешено осуществлять право на ассоциацию, включая право создавать, присоединяться и эффективно участ- вовать в деятельности неправительственных организаций, которые стремятся поощрять и защищать права человека и основные свободы, включая профсоюзы и группы по наблюдению за соблюдением прав человека; (…) (32) (…) Лица, принадлежащие к национальным меньшинствам, имеют право сво- бодно выражать, сохранять и развивать свою этническую культурную, языко- вую или религиозную самобытность и поддерживать и развивать свою культуру во всех ее аспектах, не подвергаясь каким-либо попыткам ассимиляции вопреки своей воли. В частности, они имеют право: (…) (32.6) создавать и поддерживать организации или ассоциации в пределах своей страны и участвовать в деятельности международных неправительственных организаций. Париж 1990 г. (Новая эра демократии, мира и единства) Мы подтверждаем, что без какой-либо дискриминации каждый человек имеет право на: (…) свободу ассоциации и мирных собраний (…)

3.1.10 Свобода выражения мнения, свобода СМИ и доступа к информации A. Общие положения Хельсинки 1975 г. (Сотрудничество в гуманитарных и других областях) Государствa-участники, сознавая потребность во все более широком знании и понимании различных аспектов жизни других государств-участников, отмечая вклад этого процесса в рост доверия между народами, желая с развитием взаимопонимания между государствами-участниками и с дальнейшим улучшением отношений между ними продолжать и дальше усилия с целью прогресса в этой области, отмечая важное значение распространения информации из других государств- участников и лучшего ознакомления с такой информацией, (…) ставят своей целью облегчать более свободное и широкое распространение всех форм информации, поощрять сотрудничество в области информации и обмен информацией с другими странами (…)

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Вена 1989 г. (Сотрудничество в гуманитарных и других областях) (34) (…) согласно Международному пакту о гражданских и политических пра- вах, Всеобщей декларации прав человека и их соответствующим международным обязательствам относительно поиска, получения и распространения всех форм информации они будут обеспечивать, чтобы отдельные лица могли свободно выбирать свои источники информации. В этом контексте они будут: (…) • разрешать отдельным лицам, учреждениям и организациям при уважении прав на интеллектуальную собственность, включая авторское право, получать, обла- дать, воспроизводить и распространять информационные материалы всякого рода. С этой целью они будут устранять любые ограничения, не совместимые с выше- упомянутыми обязательствами по международному праву и международными обязательствами. (35) Они будут использовать все возможности, предоставляемые современными средствами связи, включая кабельную и спутниковую, для обеспечения более сво- бодного и более широкого распространения всех форм информации. Они будут также поощрять сотрудничество и обмены между их соответствующими учреж- дениями, организациями и техническими экспертами и работать в направлении гармонизации технических стандартов и норм. Они будут учитывать воздействие этих современных средств связи на их средства массовой информации. (36) Они будут обеспечивать на практике, чтобы официальные информационные бюллетени могли свободно распространяться на их территории дипломатичес- кими и другими официальными миссиями и консульскими представительствами других государств-участников. (…) (45) Они будут обеспечивать на практике, чтобы лица, принадлежащие к нацио- нальным меньшинствам или региональным культурам на их территории, могли распространять информацию на своем родном языке, иметь к ней доступ и обме- ниваться ею. София 1989 г. (Преамбула) Государства-участники вновь заявляют о своем уважении права отдельных лиц, групп и организаций, занимающихся проблемами окружающей среды, свободно выражать свои мнения, объединяться с другими, проводить мирные собрания, а также получать, публиковать и распространять информациию об этих пробле- мах, без правовых и административных препятствии, несовместимых с положе- ниями СБСЕ. Эти отдельные лица, группы и организации имеют право участво- вать в публичном обсуждении проблем окружающей среды, а также устанавли- вать и поддерживать прямые и независимые контакты на национальном и между- народном уровнях.

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Копенгаген 1990 г. (7) (…) государства-участники (…) (7.7) обеспечивают, чтобы закон и государственная политика допускали проведе- ние политических кампаний в атмосфере свободы и честности, в которой ника- кие административные действия, насилие или запугивание не удерживали бы партии и кандидатов от свободного изложения своих взглядов и оценок, а также не мешали бы избирателям знакомиться с ними и обсуждать их (…) (…) (9) Государства-участники подтверждают, что (9.1) каждый человек имеет право на свободу выражения своего мнения, включая право на общение. Это право включает свободу придерживаться своего мнения и получать и распространять информацию и идеи без вмешательства со стороны государственных властей и независимо от государственных границ. Осуществле- ние этого права может быть предметом лишь таких ограничений, которые пред- писаны законом и соответствуют международным стандартам. В частности, не будет установлено никаких ограничений на доступ к средствам для размноже- ния документов всех видов и на их использование при соблюдении, тем не менее, прав, касающихся интеллектуальной собственности, включая авторское право; (…) (10) (…) государства-участники заявляют о своем обязательстве: (10.1) уважать право каждого самостоятельно или совместно с другими запраши- вать, получать и передавать свободно мнения и информацию о правах человека и основных свободах, включая право распространять и публиковать такие мнения и информацию; (10.2) уважать право каждого самостоятельно или совместно с другими изучать и обсуждать вопросы соблюдения прав человека и основных свобод и готовить и обсуждать соображения относительно улучшения защиты прав человека и более совершенных средств обеспечения соблюдения международных стандартов в области прав человека; (…) (32) (…) Лица, принадлежащие к национальным меньшинствам, имеют право сво- бодно выражать, сохранять и развивать свою этническую культурную, языко- вую или религиозную самобытность и поддерживать и развивать свою культуру во всех ее аспектах, не подвергаясь каким-либо попыткам ассимиляции вопреки своей воли. В частности, они имеют право:

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Будапешт 1994 г. (Решения: VIII. Человеческое измерение) 36. Государства-участники вновь подтверждают, что свобода выражения своего мнения является основным правом человека и одним из основополагающих эле- ментов демократического общества. (…) Стамбул 1999 г. (Хартия европейской безопасности: III. Наш общий ответ) 26. Мы вновь подтверждаем значение (…) и свободных потоков информации, а также доступа общественности к информации. Мы берем на себя обязательство предпринять все необходимые меры по созданию необходимой основы (…) бес- препятственного трансграничного и внутригосударственного потоков информа- ции (…) B. Свобода СМИ и условия работы журналистов См. также: á I. 2.3.4 C: Представитель по вопросам свободы средств массовой информации

Хельсинки 1975 г. (Сотрудничество в гуманитарных и других областях) (…) отмечая важное значение распространения информации из других госу- дарств-участников и лучшего ознакомления с такой информацией, подчеркивая поэтому существенную и влиятельную роль печати, радио, телевиде- ния, кино и телеграфных агентств и журналистов, работающих в этих областях; ставят своей целью облегчать более свободное и широкое распространение всех форм информации, поощрять сотрудничество в области информации и обмен информацией с другими странами и улучшать условия, в которых журналисты из одного государства-участника осуществляют свою профессиональную деятель- ность в другом государстве-участнике, и выражают свое намерение, в частности: (a) Улучшение распространения, доступа и обмена информацией (…) (ii) Печатная информация - Cпособствовать улучшению распространения на их территории газет и печат- ных изделий, периодических и непериодических, из других государств-участни- ков. (…) (…) - Способствовать улучшению доступа общественности к печатным изданиям, периодическим и непериодическим, импортируемым на указанной выше основе (…) (iii) Кино-, радио- и телевизионная информация

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Способствовать улучшению распространения кино-, радио- и телевизионной информации. (…) государства-участники отмечают расширение распространения радиоинформа- ции и выражают надежду на продолжение этого процесса, так чтобы это отвечало интересам взаимопонимания между народами и целям, определенным настоя- щим Совещанием. (b) Cотрудничество в области информации Поощрять сотрудничество в области информации на основе кратко- или долго- срочных соглашений или договоренностей. В частности: • они будут способствовать более широкому сотрудничеству между органами мас- совой информации, в том числе между телеграфными агентствами, издательс- твами и издательскими организациями; • они будут способствовать сотрудничеству между радиовещательными и телеви- зионными организациями, как государственными, так и частными, националь- ными и международными, в частности путем обмена прямыми или в записи радио- и телевизионными программами, совместного производства и распро- странения таких программ; • они будут поощрять встречи и контакты как между журналистскими организа- циями, так и между журналистами государств-участников; • они будут благоприятно относиться к возможности достижения договореннос- тей между периодическими изданиями, включая газеты, государств-участников об обмене статьями и их публикации; • они будут поощрять обмен технической информацией, а также организацию совместных исследований и проведение встреч специалистов по обмену опы- том и мнениями в области печати, радио и телевидения. (c) Улучшение условий работы журналистов Государства-участники, стремясь к улучшению условий, в которых журна- листы одного из государств-участников осуществляют свою профессиональную деятельность в другом государстве-участнике, имеют в виду, в частности: • изучать в благожелательном духе в подходящие и разумные сроки просьбы жур- налистов о выдаче виз; • предоставлять постоянно аккредитованным журналистам государств-участни- ков на основе договоренности многократные въездные-выездные визы на опре- деленный срок; • облегчать выдачу аккредитованным журналистам государств-участников раз- решений на проживание в стране их временного пребываня и, если и когда тако- вые необходимы, других полагающихся им официальных документов;

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• облегчать на основе взаимности процедуры оформления поездок журналистов государств-участников по стране, в которой они осуществляют свою професси- ональную деятельность и постепенно предоставлять большие возможности для таких поездок при соблюдении правил, связанных с наличием районов, закры- тых по соображениям безопасности; • обеспечивать, чтобы на просьбы таких журналистов о подобных поездках давался ответ по возможности быстро, с учетом срока запроса; • увеличивать возможности личного общения журналистов государств-учас- тников с источниками их информации, включая организации и официальные учреждения; • предоставлять журналистам государств-участников право ввоза, лишь при условии последующего вывоза, технического оборудования (фото-, кино-, маг- нитофонного, радио- и телевизионного-, необходимого для выполнения их про- фессиональной деятельности;*) • предоставлять журналистам других государств-участников, будь то постоянно или временно аккредитованным, возможность передавать полностью, в обыч- ном порядке и быстро через признанные государствами-участниками каналы в представляемые ими органы информации результаты их профессиональ- ной деятельности, включая магнитофонные записи и непроявленную пленку, с целью опубликования или передачи по радио или телевидению. Государства-участники подтверждают, что журналисты не могут подвергаться выдворению или иным образом наказываться в результате законного осущест- вления их профессиональной деятельности. В случае выдворения аккредитован- ного журналиста он будет информирован о причинах этого и может обращаться с просьбой о пересмотре его дела. Мадрид 1983 г. (Сотрудничество в гуманитарных и других областях) [Государства-участники] будут благоприятствовать дальнейшему расширению сотрудничества между средствами массовой информации и их представителями, особенно между редакциями агентств печати, газет, радио и телевизионных орга- низаций, а также кинокомпаний. Они будут поощрять более регулярный обмен новостями, статьями, приложениями, радиопередачами, а также обмен между редакциями с целью лучшего ознакомления с соответствующей практикой. На основе взаимности они будут улучшать материальные и технические средства, предоставляемые постоянно или временно аккредитованным корреспондентам телевидения и радио. Помимо этого, они будут облегчать непосредственные кон- такты между журналистами так же, как контакты в рамках профессиональных организаций.

* Признавая, то во многих слуаях иностранными журналистами используется соответствующий мес- тный персонал, государства-уастники отмеают, то изложенные выше положения применялись бы при соблюдении подходящих правил к лицам из других государств-уастников, которые регулярно и в силу своей профессии работают в каестве техников, фотографов и операторов пеати, радио, телевидения или кино.

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Они будут принимать без чрезмерной задержки решения по просьбам о визах для журналистов и вновь рассматривать в разумные сроки просьбы, в которых было отказано. Кроме того, на журналистов, желающих совершить поездку по личным причинам, а не с целью профессиональной деятельности, распространяется тот же режим, что и на других посетителей из той же страны. Они будут предоставлять постоянно аккредитованным корреспондентам и чле- нам их семей, живущим с ними, многократные въездные и выездные визы сроком на один год. Государства-участники будут изучать возможность предоставления на основе, где это необходимо, двусторонних договоренностей аккредитации и соответствую- щих условий журналистам из других государств-участников, постоянно аккреди- тованным в третьих странах. Они будут способствовать поездкам журналистов из других государств-участников по своей территории, в частности, принимая конкретные меры, где это необходимо, чтобы предоставлять им более широкие возможности для поездок, за исключением районов, закрытых по соображениям безопасности. Они будут информировать журналистов заранее, когда это воз- можно, если новые районы будут закрываться по соображениям безопасности. Они будут и далее расширять возможности и, когда необходимо, улучшать усло- вия для журналистов из других государств-участников для установления и под- держания личных контактов и связей с их источниками информации. Они будут, как правило, разрешать, чтобы журналисты радио и телевидения по их просьбе сопровождались собственными звуко- и кинооператорами и использо- вали собственное оборудование. Равным образом, журналисты могут иметь с собой справочные материалы, вклю- чая личные заметки и досье, которые будут использоваться строго для их профес- сиональных целей*. Вена 1989 г. (Сотрудничество в гуманитарных и других областях) (34) (…) Они будут предпринимать дальнейшие усилия для облегчения более сво- бодного и широкого распространения всех форм информации, поощрения сотруд- ничества в области информации и улучшения условий работы журналистов. (…) (…) они будут: • обеспечивать, чтобы в их государствах мог осуществляться прямой и нормаль- ный прием передач радиослужб, действующих в соответствии с правилами радиовещания МСЭ; (…) (…)

* В этом контексте существует понимание, что ввоз печатных материалов может регулироваться мест- ными правилами, которые будут применяться с должным учетом потребности журналистов в соответс- твующих рабочих материалах.

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(37) Они будут поощрять радио- и телевизионные организации осуществлять на основе договоренностей между ними, особенно в странах проведения, пря- мую передачу программ и дискуссий с участием представителей различных госу- дарств, а также трансляцию выступлений и интервью политических и других деятелей государств-участников. (38) Они будут поощрять радио- и телевизионные организации освещать различ- ные аспекты жизни в других государствах-участниках и увеличивать число теле- мостов между их странами. (39) Напоминая, что законное осуществление журналистами своей профессио- нальной деятельности не поставит их перед угрозой выдворения и не приведет каким-либо другим образом к их наказанию, они будут воздерживаться от при- нятия ограничительных мер, таких, как лишение журналиста аккредитации или выдворение его из-за содержания репортажей журналиста или его органа инфор- мации. (40) Они будут обеспечивать, чтобы журналисты, включая тех, которые пред- ставляют средства массовой информации других государств-участников, при осуществлении ими такой деятельности могли свободно искать доступ к обще- ственным и частным источникам информации и поддерживать контакты с ними, а также чтобы уважалась их потребность в профессиональной конфиденциаль- ности. (41) Они будут уважать авторское право журналистов. (42) На основе соглашений между ними там, где это необходимо, и в целях регу- лярного поступления репортажей они будут предоставлять аккредитацию, где это потребуется, и многократные въездные визы журналистам из других госу- дарств-участников, независимо от их постоянного места проживания. На этой основе они сократят до максимум двух месяцев период для предоставления как аккредитации, так и многократных въездных виз журналистам. (43) Они будут облегчать работу иностранных журналистов, предоставляя по просьбе соответствующую информацию относительно практических вопросов, таких, как правила ввоза, налоги и жилье. (44) Они будут обеспечивать, чтобы официальные пресс-конференции и, в случае целесообразности, другие подобные официальные мероприятия для прессы были также открыты для иностранных журналистов после их аккредитации, где она требуется. Копенгаген 1990 г. (7) (…) государства-участники (…) (7.8) обеспечивают, чтобы не устанавливались какие-либо юридические или адми- нистративные барьеры для беспрепятственного доступа к средствам массовой

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информации на недискриминационной основе для всех политических группиро- вок и отдельных лиц, желающих принять участие в избирательном процессе; Москва 1991 г. (26) Государства-участники вновь подтверждают право на свободу выражения своего мнения, включая право на общение и право средств информации собирать, передавать и распространять информацию, новости и мнения. Любые ограниче- ния, касающиеся осуществления этого права, будут предусматриваться законом и соответствовать международным стандартам. Они признают далее, что незави- симые средства информации являются важнейшим условием для свободного и открытого общества и ответственных за свои действия государственных систем и играют особую роль в деле охраны прав человека и основных свобод. (26.1) Они считают, что средства печати и телерадиовещания на их территории должны иметь неограниченный доступ к иностранным источникам новостей и информационным службам. Общественность будет пользоваться аналогичной свободой получения и передачи информации и идей без вмешательства со сто- роны государственных властей, независимо от границ, в том числе через иност- ранные публикации и программы телерадиовещания. Любые ограничения в осу- ществлении этого права будут устанавливаться законом и соответствовать меж- дународным стандартам. (26.2) Государства-участники не будут допускать дискриминации в отношении независимых средств информации, в том, что касается их доступа к информации, материалам и техническим средствам. (…) (28.9) Государства-участники будут стремиться обеспечить свободу слова и сво- боду информации, совместимые с их международными обязанностями и обяза- тельствами, с тем, чтобы общественность имела возможность обсуждать вопрос о соблюдении прав человека и основных свобод и об отмене чрезвычайного поло- жения. Они в соответствии с международными стандартами в отношении сво- боды слова не будут принимать каких-либо мер, с тем, чтобы воспрепятствовать журналистам законно осуществлять их профессиональные функции, кроме таких мер, которые совершенно необходимы в конкретной ситуации. (…) (34) Государства-участники будут принимать в надлежащих случаях все возмож- ные меры для защиты журналистов, находящихся в опасных профессиональных командировках, особенно в случаях вооруженных конфликтов, и будут сотруд- ничать в этих целях. Такие меры будут включать поиск пропавших журналистов, выяснение их судьбы, оказание необходимой помощи и содействие их возвраще- нию в свои семьи.

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Будапешт 1994 г. (Решения: VIII. Человеческое измерение) 36. Государства-участники вновь подтверждают, что свобода выражения своего мнения является основным правом человека и одним из основополагающих эле- ментов демократического общества. В свете этого независимость и плюрализм средств массовой информации чрезвычайно важны для свободного и открытого общества и обеспечения подотчетности органов государственного управления. Их руководящим принципом будет защита этого права. 37. Они осуждают все случаи нападения на журналистов и целенаправленно враждебного поведения по отношению к ним и будут стремиться привлекать к ответственности лиц, непосредственно виновных в таких нападениях и в таком поведении. 38. Они отмечают также, что действия, особенно со стороны правительств, по разжиганию ненависти и нагнетанию межэтнической напряженности с помощью средств массовой информации могут служить ранним предупреждением о назре- вающем конфликте. Лиссабон 1996 г. (Декларация встречи на высшем уровне) 9. (…) Среди острых проблем человеческого измерения угрозой для стабильности в регионе ОБСЕ остаются непрекращающиеся нарушения прав человека, в част- ности в форме (…) угрозы в адрес независимых средств массовой информации (…) Мы твердо намерены продолжать усилия по решению этих проблем. (…) 11. Свобода печати и средств массовой информации является одной из главных предпосылок построения подлинно демократического гражданского общества. (…) Копенгаген 1997 г. (Приложение 1: Решение No. 193 Постоянного совета: Мандат представителя ОБСЕ по вопросам свободы средств массовой информации) 1. Государства-участники (…) напоминают о том, что свобода выражения своего мнения является одним из основных международно признанных прав человека и основополагающих элементов демократического общества и что наличие сво- бодных, независимых и плюралистичных средств массовой информации пред- ставляет собой необходимое условие существования свободного и открытого общества и подотчетной ему системы правления. Принимая во внимание при- нципы и обязательства, которые государства-участники приняли в рамках ОБСЕ (…) они постановляют учредить под эгидой Постоянного совета пост Предста- вителя ОБСЕ по вопросам средств массовой информации. Это делается с целью более полного выполнения соответствующих принципов и обязательств ОБСЕ, а также повышения эффективности совместных действий государств-участников на базе их общих ценностей. Государства-участники подтверждают свое намере- ние в полной мере сотрудничать с Представителем ОБСЕ по вопросам свободы средств массовой информации. Он будет оказывать государствам-участникам

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помощь, в духе сотрудничества, в дальнейшем претворении в жизнь их привер- женности развитию свободных, независимых и плюралистичных средств массо- вой информации. Стамбул 1999 г. (Декларация встречи на высшем уровне) 27. (…) Мы глубоко обеспокоены злоупотреблением средствами массовой инфор- мации в зонах конфликтов для разжигания ненависти и межэтнической напря- женности, а также использованием правовых ограничений и нападок, чтобы лишить граждан свободных средств массовой информации. Мы подчеркиваем необходимость обеспечения свободы выражения мнений, которая является одним из важнейших элементов политического диалога в любом демократичес- ком обществе. Мы поддерживаем усилия Бюро Представителя по вопросам сво- боды средств массовой информации по содействию развитию свободных и неза- висимых средств массовой информации. Стамбул 1999 г. (Хартия европейской безопасности: III. Наш общий ответ) 26. Мы вновь подтверждаем значение независимых средств массовой информа- ции и свободных потоков информации, а также доступа общественности к инфор- мации. Мы берем на себя обязательство предпринять все необходимые меры по созданию необходимой основы для функционирования свободных и независи- мых средств массовой информации и беспрепятственного трансграничного и внутригосударственного потоков информации (…) C. Свобода культурного и художественного выражения См. также: á II. 3.2.3: Культурные права/культурное наследие

Париж 1990 г. (Новая эра демократии, мира и единства) Мы признаем важнейший вклад нашей общей европейской культуры и разделяе- мых нами ценностей в преодоление раскола на континенте. Поэтому мы подчер- киваем свою приверженность свободе творчества, а также защите и развитию нашего культурного и духовного наследия во всем его богатстве и разнообразии. Краков 1991 г. (I. Культура и свобода) 1. Государства-участники особо подчеркивают, что уважение прав человека и основных свобод является необходимым условием всестороннего развития куль- турного творчества. 2. Государственные и общественные органы будут воздерживаться от посягатель- ства на свободу художественного творчества. 3. Государства-участники обязуются содействовать свободному и беспрепятс- твенному развитию художественного творчества и защищать его; они признают важную роль отдельных деятелей культуры в обществе и будут уважать и защи- щать целостность творческого труда.

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4. Они признают, что правительствам необходимо обеспечивать равновесие между их двойной обязанностью оказывать содействие деятельности в области культуры и гарантировать свободу такой деятельности. 5. Они признают далее, что, учитывая разнообразие деятельности в области куль- туры в государствах-участниках, существует много путей, которые имеются в рас- поряжении правительств для эффективного решения проблем, касающихся куль- турного наследия. 6. Государства-участники подтверждают свою приверженность свободе самовы- ражения и в связи с осуществлением этой свободы в области искусства и куль- туры заявляют следующее: 6.1. Издание письменных материалов, исполнение и трансляция музыкальных, театральных и аудиовизуальных произведений, а также проведение выставок живописи и скульптуры не будут являться объектом ограничений или вмеша- тельства со стороны государства за исключением тех случаев, когда такие огра- ничения предписываются внутренним законодательством и полностью соответс- твуют международным нормам. 6.2. Они выражают свое убеждение в том, что существование в области искус- ства и культуры различных независимых от государства средств распростране- ния, таких, как издательства, радиовещательные, кинематографические и телеви- зионные организации, театры и галереи, способствует обеспечению плюрализма и свободы художественного и культурного выражения. 7. Государства-участники подтверждают свою приверженность обеспечению бес- препятственного доступа к культуре и договариваются о следующем: 7.1. При условии надлежащего соблюдения прав интеллектуальной собственности любое лицо или независимая организация пользуется правом иметь в собствен- ности, использовать и воспроизводить любые виды материалов культурного характера, такие, как книги, издания и аудиовизуальные записи, а также средства их воспроизведения. Москва 1991 г. (35) Государства-участники подтверждают, что гарантия свободы творчества и сохранение культурного наследия являются составной частью человеческого измерения СБСЕ. Они считают, что независимая интеллектуальная и культурная жизнь играет решающую роль для существования свободных обществ и демок- ратических институтов. Они будут выполнять свои обязательства в сфере куль- туры, изложенные в Документе Краковского симпозиума по культурному насле- дию (…)

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3.1.11 Свобода передвижения, контактов между людьми и право на воссоединение семьи См. также: á II. 4.4: Беженцы, перемещенные лица и возвращающиеся лица, лица без гражданства á II. 4.5: Рабочие-мигранты

Хельсинки 1975 г. (Сотрудничество в гуманитарных и других областях) 1. Контакты между людьми Государства-участники, рассматривая развитие контактов в качестве важного элемента в укреплении дру- жественных отношений и доверия между народами, (…) ставят своей целью облегчать более свободное передвижение и контакты на индивидуальной и коллективной, неофициальной и официальной основе между людьми, учреждениями и организациями государств-участников и содействовать решению вопросов гуманного характера, возникающих в данной области, заявляют о своей готовности принимать в этих целях меры, которые они сочтут подходящими, а также заключать между собой, в случае необходимости, соглаше- ния или достигать договоренностей и выражают свое намерение в настоящее время приступить к осуществлению сле- дующего: (a) Контакты и регулярные встречи на основе семейных связей Имея в виду содействовать дальнейшему развитию контактов на основе семей- ных связей, государства-участники будут благожелательно рассматривать про- сьбы о поездках с целью разрешения лицам въезда на их территорию или выезда с нее на временной и, если этого пожелают, регулярной основе для встреч с чле- нами своих семей. Заявления о временных поездках для встреч с членами своих семей будут рас- сматриваться безотносительно к стране выезда или въезда; существующий поря- док оформление проездных документов и виз будет приняться в этом духе. Офор- мление и выдача таких документов и виз будут осуществляться в разумные сроки; в случаях срочной надобности — таких, как серьезная болезнь, смерть — во вне- очередном порядке. Они предпримут шаги, которые могут оказаться необходи- мыми, для обеспечения приемлемого уровня сборов за выдачу официальных про- ездных документов и виз. Они подтверждают, что подача просьбы, относящейся к контактам на основе семейных связей, не будет приводить к изменению прав и обязанностей лица, подавшего просьбу, или членов их семьи. (b) Воссоединение семей

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Государства-участники будут в позитивном и гуманном духе рассматривать про- сьбы лиц, которые желают воссоединиться с членами своей семьи, уделяя осо- бое внимание ходатайствам срочного характера, таким как ходатайства, поступа- ющие от больных или престарелых. Они будут рассматривать эти просьбы по возможности быстрее. Они будут в случае необходимости снижать сборы, взимаемые в связи с этими просьбами, чтобы обеспечить их умеренный уровень. Неудовлетворенные просьбы о воссоединении семей могут быть поданы вновь на соответствующем уровне и будут рассматриваться через непродолжительный период времени властями соответственно страны проживания или принимаю- щей страны; при таких обстоятельствах сборы будут взиматься только в случае удовлетворения просьбы. Лица, просьбы которых о воссоединении семей удовлетворены, могут привозить с собой или отправлять вещи домашнего обихода и личного потребления; с этой целью государства-участники будут использовать все возможности, содержащи- еся в существующих правилах. Пока члены одной и той же семьи не воссоединятся, встречи и контакты между ними могут осуществляться в соответствии с порядком для контактов на основе семейных связей. Государства-участники будут поддерживать усилия обществ Красного Креста и Красного Полумесяца, занимающихся проблемами воссоединения семей. Они подтверждают, что подача просьбы о воссоединении семей не будет приво- дить к изменению прав и обязанностей лица, подавшего просьбу, или членов его семьи. Принимающее государство-участник будет проявлять соответствующую заботу о трудоустройстве лиц из других государств-участников, приезжающих в это госу- дарство на постоянное жительство в рамках воссоединения семей с его граж- данами, и заботиться о том, чтобы им предоставлялись равные с собственными гражданами возможности для получения образования, медицинской помощи и социального обеспечения. (c) Браки между гражданами различных государств Государства-участники будут благожелательно и на основе гуманных соображе- ний изучать просьбы о разрешениях на выезд и въезд лиц, которые решили всту- пить в брак с гражданином другого государства-участника. Оформление и выдача документов, требуемых для указанных выше целей и для вступления в брак, будут осуществляться в соответствии с положениями, приня- тыми в отношении воссоединения семей. При рассмотрении просьб от уже вступивших в брак супругов из различных госу- дарств-участников о предоставлении возможности им и несовершеннолетним

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детям от их брака переносить их постоянное местожительство в государство, в котором обычно проживает один из них, государства-участники будут также при- менять положения, принятые в отношении воссоединения семей. (d) Поездки по личным или профессиональным причинам Государства-участники намереваются способствовать более широким возмож- ностям осуществления их гражданами поездок по личным или профессиональ- ным причинам, и в этих целях они намерены, в частности: • постепенно упрощать и гибко применять порядок выезда и въезда; • облегчать порядок передвижения граждан из других государств-участников по их территории с должным учетом требований безопасности. Они будут стремиться постепенно снижать, где это необходимо, сборы за визы и официальные проездные документы. Они намереваются изучать, в случае необходимости, средства совершенствова- ния двусторонней практики консульского обслуживания, в том числе юридичес- кой и консульской помощи, включая, насколько это целесообразно, заключение многосторонних или двусторонних консульских конвенций или других соответс- твующих соглашений и договоренностей. Мадрид 1983 г. (Сотрудничество в гуманитарных и других областях) Контакты между людьми Государства-участники будут благожелательно рассматривать просьбы, относя- щиеся к контактам и регулярным встречам на основе семейных связей, воссоеди- нению семей и бракам между гражданами различных государств, и принимать по ним решения в таком духе. Они будут принимать решения по таким просьбам в срочных случаях для семей- ных встреч по возможности быстрее, в случаях воссоединения семей и браков между гражданами различных государств — в обычном порядке в течение шести месяцев, в случаях других семейных встреч — в постепенно сокращающиеся сроки. Они подтверждают, что подача или возобновление просьбы в этих случаях не будет приводить к изменению прав и обязанностей лиц, подавших просьбу, или членов их семей, в частности, что касается трудоустройства, жилья, местожитель- ства, заботы об иждивенцах, в вопросах получения социальных, экономических или образовательных льгот, а также иных прав и обязанностей, вытекающих из законов и административных правил соответствующего государства-участника. Государства-участники будут предоставлять необходимую информацию о про- цедуре, предназначенной для лиц, подающих заявления в этих случаях, и о пра- вилах, которые подлежат соблюдению, а также по просьбе заявителя, предостав- лять соответствующие формы.

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Они будут, где это необходимо, постепенно снижать сборы, взимаемые в связи с подачей указанных просьб, включая стоимость виз и паспортов, с тем, чтобы довести их до умеренного уровня в отношении к среднемесячному доходу в соот- ветствующем государстве-участнике. Лица, подавшие просьбы, будут информированы так быстро, как это возможно, о принятом решении. В случаях отказа лица, подавшие просьбы, будут также информированы об их праве возобновить подачу просьбы через разумно непро- должительный период времени. Вена 1989 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) (20) Государства-участники будут полностью уважать право каждого: • на свободу передвижения и местожительства в пределах границ каждого госу- дарства и • покидать любую страну, включая свою собственную, и возвращаться в свою страну. Вена 1989 г. (Сотрудничество в гуманитарных и других областях) Контакты между людьми (1) При выполнении положений Заключительного акта, мадридского Итого- вого документа и настоящего Документа о контактах между людьми [государс- тва-участники] будут полностью уважать свои обязательства по международному праву, как указывается в подразделе настоящего Документа, посвященном при- нципам, в частности о том, что каждый свободен покидать любую страну, вклю- чая свою собственную, и возвращаться в свою страну, а также их международные обязательства в этой области. (2) Они будут обеспечивать, чтобы их политика в отношении въезда на их терри- торию была в полной мере совместима с целями, изложенными в соответству- ющих положениях Заключительного акта, мадридского Итогового документа и настоящего Документа. (3) Они предпримут необходимые шаги с целью найти по возможности быст- рее, но в любом случае в течение шести месяцев, решения в отношении всех хода- тайств, основанных на положениях Заключительного акта и мадридского Итого- вого документа о контактах между людьми, по которым не будут приняты реше- ния к завершению Венской встречи. (4) Впоследствии они будут проводить регулярные обзоры, с тем, чтобы обеспе- чить такое положение, при котором все ходатайства, основанные на положениях о контактах между людьми Заключительного акта и других вышеуказанных доку- ментов СБСЕ, рассматривались сообразно с этими положениями. (5) Они будут принимать решения в отношении ходатайств, касающихся встреч на основе семейных связей в соответствии с Заключительным актом и другими

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вышеупомянутыми документами СБСЕ, в возможно кратчайшие сроки и в рам- ках обычной практики в течение одного месяца. (6) Таким же образом они будут принимать решения в отношении ходатайств, касающихся воссоединения семей или заключения браков между гражданами различных государств, в рамках обычной практики в течение трех месяцев. (7) Благожелательно рассматривая ходатайства, касающиеся встреч на основе семейных связей, они будут должным образом учитывать пожелания заявителя, в особенности в отношении сроков и достаточной продолжительности таких встреч и в отношении поездок вместе с другими членами его семьи с целью сов- местных семейных встреч. (8) Благожелательно рассматривая ходатайства, касающиеся встреч на основе семейных связей, они будут также разрешать поездки менее близких родственни- ков и поездки к менее близким родственникам. (9) Благожелательно рассматривая ходатайства, касающиеся воссоединения семей или заключения браков между гражданами различных государств, они будут ува- жать пожелания заявителей в отношении страны назначения, которая готова их принять. (10) Они будут уделять особое внимание решению проблем, касающихся воссо- единения несовершеннолетних детей с их родителями. В этой связи и на основе соответствующих положений Заключительного акта и других вышеупомянутых документов СБСЕ они будут обеспечивать: • чтобы ходатайство об этом, поданное в то время, пока ребенок является несо- вершеннолетним, рассматривалось благожелательно и быстро с целью осущест- вить воссоединение без задержки; и • чтобы были приняты соответствующие меры с целью защиты интересов и бла- госостояния таких детей. (11) Они будут рассматривать возможности для постепенного уменьшения и в конечном итоге отмены любых возможных требований относительно получе- ния лицами, совершающими поездки, местной валюты в количестве, превышаю- щем фактические расходы, отдавая предпочтение лицам, совершающим поездки с целью семейных встреч. Они будут предоставлять таким лицам возможность на практике ввозить или вывозить с собой личные вещи или подарки. (12) Они будут уделять незамедлительное внимание ходатайствам о поездках неотложного гуманитарного характера и рассматривать их благожелательно сле- дующим образом: • они будут принимать в течение трех рабочих дней решения по ходатайствам, касающимся поездок к серьезно больному или находящемуся при смерти члену семьи, поездок для участия в похоронах члена семьи или поездок лиц, нуждаю- щихся в срочном медицинском лечении, необходимость которого засвидетель-

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ствована, или лиц, критическое состояние или неизлечимая болезнь которых могут быть установлены; • они будут принимать по возможности быстрее решения по ходатайствам, каса- ющимся поездок серьезно больных или престарелых, а также других поездок срочного гуманитарного характера. Они будут наращивать усилия своих местных, региональных и центральных влас- тей, занимающихся осуществлением вышеизложенного, и обеспечивать, чтобы сборы за предоставление режима первоочередности таким ходатайствам не пре- вышали фактически понесенных расходов. (13) При рассмотрении ходатайств о поездках с целью семейных встреч, воссо- единения семей или браков между гражданами различных государств они будут обеспечивать, чтобы действия или упущения со стороны членов семьи заявителя не сказывались негативно на правах заявителя, как они изложены в соответству- ющих международных инструментах. (14) Они будут обеспечивать, чтобы все документы, необходимые для ходатайств, основанных на положениях о контактах между людьми Заключительного акта и других вышеупомянутых документов СБСЕ, были легко доступны для заявителя. Документы будут оставаться в силе на протяжении всей процедуры рассмотре- ния ходатайства. В случае возобновления ходатайства документы, ранее подан- ные заявителем в связи с предыдущими ходатайствами, будут приниматься во внимание. (15) Они будут упрощать практику и постепенно сокращать административ- ные требования в отношении ходатайств, основанных на положениях о контак- тах между людьми Заключительного акта и других вышеупомянутых документов СБСЕ. (16) Они будут обеспечивать, чтобы в тех случаях, когда ходатайства, основанные на положениях о контактах между людьми Заключительного акта и других выше- упомянутых документов СБСЕ, отклоняются по причинам, определенным в соот- ветствующих международных инструментах, заявителю было быстро предостав- лено в письменной форме официальное извещение о том, на каких основаниях было вынесено такое решение. Как правило и во всех случаях, когда об этом поп- росит заявитель, ему будет предоставлена необходимая информация о процедуре использования любых действующих административных или судебных средств правовой защиты в отношении принятого решения, доступных ему согласно вышеупомянутым международным инструментам. В случаях, касающихся выезда за границу для постоянного проживания, такая информация будет предостав- ляться как часть вышеупомянутого официального извещения. (17) Если в этом контексте ходатайство отдельного лица о поездке за границу было отклонено по соображениям государственной безопасности, они будут обеспечи- вать, чтобы в пределах строго обоснованных сроков любое ограничение на поез- дку этого лица было как можно более кратковременным и не применялось про-

142 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I I Гражданские и политические права

извольным образом. Они будут также обеспечивать, чтобы заявитель имел воз- можность для того, чтобы отказ был вновь рассмотрен в течение шести месяцев и, в случае необходимости, через регулярные промежутки времени впоследствии, так чтобы любые изменения в обстоятельствах, связанных с отказом, таких, как период времени, прошедший с момента, когда заявитель в последний раз выпол- нял работу или обязанности, связанные с государственной безопасностью, при- нимались во внимание. Прежде чем приступить к выполнению такой работы или таких обязанностей, лицо будет официально извещено о том, может ли это ска- заться и каким образом на возможном ходатайстве о такой поездке. (18) В течение одного года после завершения Венской встречи они опубликуют и сделают легко доступными, где это еще не сделано, все их законы и подзакон- ные акты, касающиеся передвижения отдельных лиц по их территории и поездок между государствами. (19) Благожелательно рассматривая ходатайства, основанные на положениях о контактах между людьми Заключительного акта и других вышеупомянутых доку- ментов СБСЕ, они будут обеспечивать их своевременное рассмотрение для того, в частности, чтобы должным образом учитывать важные семейные, личные или профессиональные соображения, имеющие значение для заявителя. (20) Они будут благожелательно рассматривать ходатайства о поездках за гра- ницу без различия какого-либо рода, как-то: расы, цвета кожи, пола, языка, рели- гии, политических или иных убеждений, национального или социального про- исхождения, имущественного положения, рождения, возраста или иного обсто- ятельства. Они будут обеспечивать, чтобы отказ не сказывался на ходатайствах, поданных другими лицами. (21) Они будут в большей мере содействовать поездкам на индивидуальной или коллективной основе по личным или профессиональным причинам и в турис- тических целях, таким, как поездки делегаций, групп и отдельных лиц. С этой целью они будут сокращать до минимума время рассмотрения ходатайств о таких поездках. (22) Они будут уделять серьезное внимание предложениям о заключении согла- шений относительно выдачи многократных въездных виз и взаимного упроще- ния визовых формальностей, а также изучать возможности для взаимного упраз- днения въездных виз на основе соглашений между ними. (23) Они будут рассматривать возможности присоединения к соответствую- щим многосторонним инструментам, а также заключения, если это необходимо, дополнительных или других двусторонних соглашений с целью совершенствова- ния мер по обеспечению эффективной консульской, юридической и медицинской помощи гражданам других государств-участников, временно находящимся на их территории. (24) Они будут принимать любые необходимые меры с целью обеспечить, где это еще не сделано, чтобы гражданам других государств-участников, временно нахо-

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дящимся на их территории по личным или профессиональным причинам, в том числе с целью участия в мероприятиях в области культуры, науки и образования, была гарантирована должная личная безопасность. (…) (31) Они будут обеспечивать, чтобы статус лиц, принадлежащих к национальным меньшинствам или региональным культурам на их территориях, был равным тому статусу, которым пользуются другие граждане в том, что касается контак- тов между людьми в соответствии с Заключительным актом и другими вышеупо- мянутыми документами СБСЕ, и чтобы эти лица могли устанавливать и подде- рживать такие контакты посредством поездок и других средств общения, вклю- чая контакты с гражданами других государств, с которыми их объединяет общее национальное происхождение или культурное наследие. (32) Они будут разрешать верующим, религиозным культам и их представителям, на групповой или индивидуальной основе, устанавливать и поддерживать пря- мые личные контакты и общение друг с другом в их собственных и других стра- нах, в частности посредством поездок, паломничества и участия в собраниях и других религиозных мероприятиях. В этом контексте и в той мере, в которой это соизмеримо с такими контактами и мероприятиями, тем, о ком идет речь, будет разрешаться приобретать, получать и везти с собой религиозные публикации и предметы культа, относящиеся к исповедованию их религии или веры. Копенгаген 1990 г. (9) Государства-участники подтверждают, что (…) (9.5) они будут уважать право каждого человека покидать любую страну, вклю- чая свою собственную, и возвращаться в свою страну в соответствии с междуна- родными обязательствами государства по международному праву и обязательс- твами по СБСЕ. Ограничения этого права будут носить характер весьма редких исключений, будут считаться необходимыми лишь в тех случаях, когда они отве- чают конкретной общественной потребности, преследуют законную цель и сораз- мерны этой цели и не будут предметом злоупотребления или произвольного при- менения; (…) (10.4) разрешать членам таких групп и организаций иметь беспрепятственный доступ и поддерживать связь с подобными органами в своих странах и за их пре- делами и с международными организациями, обмениваться мнениями, подде- рживать контакты и сотрудничать с такими группами и организациями (…) (…) (19) Государства-участники подтверждают, что более свободное передвижение и контакты между их гражданами имеют важное значение в контексте защиты

144 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I I Гражданские и политические права

и развития прав человека и основных свобод. Они будут обеспечивать, чтобы их политика в отношении въезда на их территории в полной мере соответство- вала целям, изложенным в соответствующих положениях Заключительного акта, мадридского Итогового документа и венского Итогового документа. Подтверж- дая свою решимость не отступать от обязательств, содержащихся в документах СБСЕ, они обязуются полностью выполнять и совершенствовать нынешние обя- зательства в области контактов между людьми, в том числе на двусторонней и многосторонней основе. В этом контексте они будут: (19.1) стремиться осуществлять процедуры въезда на их территории, включая выдачу виз, паспортный и таможенный контроль, добросовестно и без неоправ- данных задержек. Там, где это необходимо, они будут сокращать сроки принятия решений о выдаче виз, а также упрощать практику и сокращать административ- ные требования в отношении ходатайств о получении виз; (19.2) обеспечивать при рассмотрении ходатайств о получении виз, чтобы этот процесс проходил как можно быстрее для того, чтобы, в частности, должным образом учитывались важные семейные, личные или профессиональные сообра- жения, особенно в случаях срочного гуманитарного характера; (19.3) стараться, там где это необходимо, снижать сборы, связанные с ходатайс- твами о выдаче виз до самого низкого возможного уровня. Париж 1990 г. (Новая эра демократии, мира и единства) В соответствии с нашими обязательствами по СБСЕ мы подчеркиваем, что сво- бодное передвижение наших граждан и контакты между ними, а также свобод- ный поток информации и идей имеют важнейшее значение для сохранения и раз- вития свободных обществ и процветающих культур. (…) Москва 1991 г. (33) Государства-участники устранят все правовые и другие ограничения в отно- шении передвижения своих и иностранных граждан в пределах их территорий и местожительства лиц, имеющих право на постоянное проживание, за исклю- чением тех ограничений, которые могут быть необходимы и официально объяв- лены исходя из военных интересов, интересов безопасности, экологии или дру- гих законных государственных интересов, в соответствии с их национальными законами, совместимыми с обязательствами в рамках СБСЕ и международными обязательствами в области прав человека. Государства-участники обязуются сво- дить такие ограничения к минимуму. Будапешт 1994 г. (Решения: VIII. Человеческое измерение) 40. [Государства-участники] будут поощрять полное выполнение административ- ными органами, соприкасающимися в своей деятельности с гражданами других государств, принятых в рамках СБСЕ обязательств относительно поездок и воз- держиваться от унизительного обращения и других посягательств на достоинс-

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тво личности. Они также рассмотрят необходимость составления сборника соот- ветствующих положений, принятых в СБСЕ.

3.1.12 Уважение частной и семейной жизни См. также: á II. 3.1.11: Свобода передвижения, контактов между людьми и право на воссоединение семьи Москва 1991 г. (24) Государства-участники подтверждают право на охрану личной семейной жизни, жилища, тайны переписки и электронных сообщений. Во избежание любого неправомерного или произвольного вмешательства государства в жизнь индивидуума, что могло бы нанести ущерб любому демократическому обществу, осуществление этого права будет ограничиваться только в случаях, предусмот- ренных законом и совместимых с международно признанными стандартами в области прав человека. В частности, государства-участники обеспечат, чтобы обыски и аресты лиц, а также частных помещений и имущества производились лишь в соответствии с такими нормами, которые обеспечены судебной защитой.

3.1.13 Право на гражданство См. также: á II. 4.4: Беженцы, перемещенные лица и возвращающиеся лица, лица без гражданства

Хельсинки 1992 г. (Решения: VI. Человеческое измерение) Гражданство Государства-участники (55) Признают, что каждый человек имеет право на гражданство и что никто не может быть произвольно лишен своего гражданства. (56) Подчеркивают, что все аспекты гражданства будут регулироваться законода- тельным процессом. При необходимости они будут принимать меры, соответс- твующие конституционному устройству их стран, с тем, чтобы число лиц без гражданства не увеличивалось. Стамбул 1999 г. (Хартия европейской безопасности: III. Наш общий ответ) 19. (…) Мы вновь подтверждаем, что каждый человек имеет право на гражданство и что никто не может быть произвольно лишен своего гражданства. Мы обязу- емся продолжать наши усилия с целью обеспечить, чтобы каждый смог восполь- зоваться этим правом. Мы также твердо намерены сделать более надежной меж- дународную защиту лиц без гражданства.

3.1.14 Имущественные права Бонн 1990 г. (Преамбула) государства-участники,

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(…) будут стремиться достичь или придерживаться следующего: (…) • полного признания и защиты всех форм собственности, в том числе частной собственности, и права граждан владеть и пользоваться ими, а также прав на интеллектуальную собственность; • права на быструю, справедливую и эффективную компенсацию в случае изъятия частной собственности для использования в интересах общества; (…) Копенгаген 1990 г. (9) Государства-участники подтверждают, что (…) (9.6) каждый человек имеет право на мирное использование своей собственности индивидуально либо совместно с другими. Никто не может быть лишен своей собственности, за исключением случаев, определяемых общественными интере- сами, и на условиях, предусмотренных законом и соответствующих международ- ным обязательствам и обязательствам по международному праву. Париж 1990 г. (Новая эра демократии, мира и единства) Мы подтверждаем, что без какой-либо дискриминации (…) каждый имеет (…) право: • владеть собственностью единолично или совместно с другими и заниматься индивидуальным предпринимательством (…)

3.2 Экономические, социальные и культурные права

3.2.1 Общие положения Хельсинки 1975 г. (Вопросы, относящиеся к безопасности в Европе: 1. (a) Декла- рация принципов, которыми государства-участники будут руководствоваться во взаимных отношениях; Принципы VII-IX) VII. Уважение прав человека и основных свобод, включая свободу мысли, совести, религии и убеждений (…) [Государства-участники] будут поощрять и развивать эффективное осуществле- ние гражданских, политических, экономических, социальных, культурных и дру- гих прав и свобод, которые все вытекают из достоинства, присущего человеческой личности, и являются существенными для ее свободного и полного развития. (…)

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IX. Сотрудничество между государствами (…) Они будут стремиться, развивая свое сотрудничество как равные, содействовать взаимопониманию и доверию, дружественным и добрососедским отношениям между собой, международному миру, безопасности и справедливости. Они будут, равным образом, стремиться, развивая свое сотрудничество, повышать благо- состояние народов и способствовать претворению в жизнь их чаяний, исполь- зуя, в частности, выгоды, вытекающие из расширяющегося взаимного ознакомле- ния и их прогресса и достижений в экономической, научной, технической, соци- альной, культурной и гуманитарной областях. Они будут предпринимать шаги по содействию условиям, благоприятствующим тому, чтобы делать эти выгоды доступными для всех; они будут учитывать интересы всех в сокращении разли- чий в уровнях экономического развития и, в частности, интересы развивающихся стран во всем мире. Мадрид 1983 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) [Государства-участники] равным образом подчеркивают свою решимость совер- шенствовать свои законы и административные правила в области гражданских, политических, экономических, социальных, культурных и других прав человека и основных свобод; они также подчеркивают свою решимость обеспечивать эффек- тивное осуществление этих прав и свобод. Вена 1989 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) (12) (…) [Государства-участники] признают, что все гражданские, политические, экономические, социальные, культурные и другие права и свободы имеют перво- степенное значение и должны полностью осуществляться всеми надлежащими способами. (13) В этой связи они будут: (13.1) совершенствовать свои законы, административные правила и политику в области гражданских, политических, экономических, социальных, культурных и других прав человека и основных свобод и применять их на практике с тем, чтобы гарантировать эффективное осуществление этих прав и свобод; (13.2) рассматривать вопрос о присоединении к (…) Международному пакту об экономических, социальных и культурных правах (…) и другим соответствую- щим международным инструментам, если они этого еще не сделали; (…) (14) Государства-участники признают, что содействие развитию экономических, социальных, культурных прав, так же как и гражданских и политических прав, имеет первостепенное значение для человеческого достоинства и для достиже- ния законных стремлений каждой личности. Они будут поэтому продолжать свои усилия с целью обеспечить постепенно полное осуществление экономи-

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ческих, социальных и культурных прав всеми надлежащими способами, в част- ности путем принятия законодательных мер. В этой связи они будут уделять осо- бое внимание проблемам в области занятости, жилья, социального обеспечения, здравоохранения, образования и культуры. Они будут содействовать постоян- ному прогрессу в осуществлении всех прав и свобод в своих странах, равно как и в развитии отношений между собой и с другими государствами с тем, чтобы каж- дый действительно пользовался в полной мере своими экономическими, соци- альными и культурными правами, а также своими гражданскими и политичес- кими правами. Париж 1990 г. (Новая эра демократии, мира и единства) Мы подтверждаем, что без какой-либо дискриминации (…) каждый имеет (…) право: (…) • пользоваться своими экономическими, социальными и культурными правами.

3.2.2 Экономические и социальные права A. Общие положения Бонн 1990 г. (Преамбула) Государства-участники, (…) будут стремиться достичь или придерживаться следующего: (…) • политики, способствующей установлению социальной справедливости и улуч- шению условий жизни и труда; (…) Париж 1990 г. (Новая эра демократии, мира и единства) Экономическая свобода и ответственность Экономическая свобода, социальная справедливость и ответственное отношение к окружающей среде абсолютно необходимы для процветания. Свободная воля личности, осуществляемая в условиях демократии и защищае- мая верховенством закона, составляет необходимую основу для успешного эко- номического и социального развития. Мы будем поощрять такую экономическую деятельность, которая осуществляется при уважении и утверждении человечес- кого достоинства. Свобода и политический плюрализм являются необходимыми элементами нашей общей цели — развития рыночной экономики в направлении устойчивого эконо- мического роста, процветания, социальной справедливости, увеличения заня-

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тости и эффективного использования экономических ресурсов. Успешный пере- ход к рыночной экономике стран, предпринимающих усилия в этом направле- нии, имеет важное значение и отвечает интересам всех нас. Он позволит нам под- няться на более высокий уровень благосостояния, что является нашей общей целью. Мы будем сотрудничать в решении этой задачи. Стамбул 1999 г. (Хартия европейской безопасности: I. Общие для нас вызовы) 5. Серьезными последствиями для нашей безопасности чреваты острые эконо- мические проблемы (…) Мы будем более решительно реагировать на подобные угрозы путем проведения дальнейших экономических и экологических реформ, обеспечения стабильных и транспарентных рамок для экономической деятель- ности, а также путем содействия развитию рыночной экономики с уделением должного внимания социально-экономическим правам. (…) Маастрихт 2003 г. (I. Стратегия ОБСЕ по противодействию угрозам безопасности и стабильности в XXI веке) 14. К числу экономических факторов, угрожающих стабильности и безопасности, относятся углубление социально-экономического неравенства, отсутствие вер- ховенства закона, слабость государственного и корпоративного управления, кор- рупция, массовая нищета и высокий уровень безработицы. Они могут создавать питательную среду для других серьезных угроз. Деградация окружающей среды, неустойчивое потребление природных ресурсов, безответственное обращение с отходами и загрязнение воздействуют на экосистемы и влекут за собой сущес- твенные негативные последствия для здоровья населения, благосостояния, ста- бильности и безопасности государств. К таким последствиям могут приводить и экологические бедствия. Связанные с этими факторами проблемы управления причиняют прямой ущерб и одновременно сокращают потенциал устойчивого экономического и социального развития, а также эффективного противодейс- твия экономическим и экологическим вызовам и угрозам безопасности и ста- бильности. Маастрихт 2003 г. (Документ-стратегия ОБСЕ в области экономического и эколо- гического измерения) 2.2 Утверждение надлежащего управления (…) Социальные условия 2.2.13 Надлежащее управление и устойчивое развитие предполагают наличие политики и систем, укрепляющих социальное партнерство и сплоченность. Мы будем прилагать усилия по расширению для всех доступа к базовым социальным услугам, таким, как медицинское обслуживание по приемлемым ценам, пенсион- ное обеспечение и образование, по адекватной защите социально уязвимых групп и недопущению социальной изоляции.

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2.2.14 Мы преисполнены решимости принимать меры по улучшению социаль- ных условий, в том числе путем выявления и целенаправленной поддержки уяз- вимых групп в обществе, создания адекватных и эффективных сетей социальной защиты, укрепления системы медицинского обслуживания, расширения возмож- ностей трудоустройства и осуществления программ реабилитации. (…) 2.3 Обеспечение устойчивого развития (…) 2.3.3 Мы поддерживаем усилия государств-участников по реализации политики сокращения масштабов нищеты и обеспечения устойчивого развития, включая национальные программы сокращения масштабов нищеты в странах с переход- ной экономикой. Мы будем приветствовать оказание международными органи- зациями и институтами, обладающими соответствующим опытом и ресурсами, необходимой консультационной и иной помощи. B. Права трудящихся См. также: á II. 4.5: Рабочие-мигранты

Мадрид 1983 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) Государства-участники будут обеспечивать право трудящихся свободно создавать и вступать в профессиональные союзы, право профессиональных союзов сво- бодно осуществлять свою деятельность и другие права, как они изложены в соот- ветствующих международных актах. Они отмечают, что эти права будут осущест- вляться при соблюдении законодательства государства и в соответствии с обя- зательствами государства по международному праву. Они будут поощрять долж- ным образом прямые контакты и связь между такими профессиональными сою- зами и их представителями. Бонн 1990 г. (Преамбула) Государства-участники, (…) признавая взаимосвязь политического плюрализма и рыночной экономики и будучи приверженными принципам, касающимся: (…) • экономической деятельности, которая соответственно утверждает человеческое достоинство и свободна от принудительного труда, от дискриминации трудя- щихся по признакам расы, пола, языка, по политическим взглядам или вероис- поведанию или от лишения трудящихся права свободно создавать независимые профсоюзы или вступать в них;

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Копенгаген 1990 г. (9) Государства-участники подтверждают, что (…) (9.3) право на ассоциацию гарантируется. Право создавать и, в зависимости от общего права профсоюза определять свое членство, свободно вступать в про- фсоюз, гарантируется. Эти права исключают любой предварительный контроль. Свобода ассоциации для рабочих, включая свободу забастовок, гарантируется с ограничениями, предписанными законом и соответствующими международным стандартам.

3.2.3 Культурные права/культурное наследие См. также: á II. 3.1.10 C: Свобода культурного и художественного выражения á II. 4.1: Национальные меньшинства á II. 4.2: Рома и синти á II. 5.3.5: Поощрение толерантности, понимания и уважения, включая уважение памяти á Том II: Хельсинки 1975 г. (Сотрудничество в гуманитарных и других областях > 3. Сотрудничество и обмены в области культуры) á Том II: Мадрид 1983 г. (Сотрудничество в гуманитарных и других областях > Сотрудничество и обмены в области культуры) á Том II: Вена 1989 г. (Сотрудничество в гуманитарных и других областях > Сотрудничество и обмены в области культуры) á Том II: Краков 1991 г. (Основные области сохранения и сотрудничества)

Краков 1991 г. (Преамбула) [Государства-участники] принимают к сведению взаимозависимость между куль- турной жизнью и благосостоянием своих народов, а также особую важность этой взаимозависимости для демократических стран в том, что касается перехода к рыночной экономике. Они поощряют оказание поддержки в соответствии с уже принятыми обязанностями и непрерывной помощи этим странам в сохранении и охране их культурного наследия. (…) Региональное культурное многообразие является отражением богатства общей культурной самобытности государств-участников. Ее сохранение и охрана спо- собствуют созданию демократической, мирной и объединенной Европы. (…) II. Культура и наследие 10. Государства-участники выражают свою глубокую убежденность в том, что культурное наследие каждого из них представляет собой неотъемлемую часть их

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цивилизации, памяти и общей истории, которая должна быть передана будущим поколениям. 11. Государства-участники принимают к сведению определения археологичес- ких ценностей культурного наследия и архитектурного наследия, содержащиеся в соответствующих международных документах Совета Европы и ЮНЕСКО. 12. Одним из важнейших элементов культурного наследия, который может быть передан будущим поколениям, является полное и регулярное документальное отражение достопримечательных мест, структур, культурных ландшафтов, объ- ектов и культурных систем, включая исторические, религиозные и культурные памятники в том виде, в котором они существуют в настоящее время. 13. Государства-участники признают также в качестве важнейших элементов своего общего культурного наследия наследие тех культур, которые по причине языковых барьеров, климата или географической отдаленности, малочислен- ности населения или поворотов истории и политических обстоятельств не имели к себе широкого доступа. 14. Государства-участники будут делать все возможное для охраны культурного наследия в соответствии с международными договоренностями и своим внут- ренним законодательством в этой области. 15. Государства-участники будут уделять внимание сохранению, развитию и вос- становлению культурного наследия при разработке мероприятий в области куль- туры, экологии и регионального и городского планирования. Они отмечают далее важность увязки отдельных проектов сохранения с их аутентичным городским или сельским окружением в тех случаях, когда это необходимо и возможно. 16. Государства-участники признают важность обеспечения наиболее широкого доступа к их культурному наследию. При этом, в частности, они будут уделять внимание потребностям инвалидов. 16.1. Они будут делать все возможное для защиты культурного наследия от ущерба, который может быть нанесен ему в результате его использования и доступа к нему широкой общественности. 16.2. Они будут способствовать осознанию общественностью значения наследия и необходимости его охраны. 16.3. Они будут стремиться во всех возможных случаях облегчать доступ иссле- дователей и ученых к соответствующим основополагающим документам и архи- вным материалам. 17. Государства-участники с признательностью отмечают роль неправительствен- ных ассоциаций в расширении осведомленности и культурном наследии и необ- ходимости его охраны. 18. Для обеспечения эффективного и всестороннего сохранения культурного наследия большую роль играет партнерство на местном, региональном и наци-

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ональном уровнях между различными группами как частного, так и государс- твенного сектора. Сохранению и разъяснению важности культурных ценностей и культурного наследия различных групп будет способствовать привлечение этих групп к этой работе, что позволит обеспечить терпимое и уважительное отноше- ние к различным культурам, имеющее огромное значение. 19. Государства-участники признают полезность и важность обмена информа- цией о сохранении культурного наследия и отмечают, что использование на наци- ональном и многонациональном уровнях банков данных может внести большой вклад в эту работу. Москва 1991 г. (35) Государства-участники подтверждают, что гарантия свободы творчества и сохранение культурного наследия являются составной частью человеческого измерения СБСЕ. Они считают, что независимая интеллектуальная и культурная жизнь играет решающую роль для существования свободных обществ и демок- ратических институтов. Они будут выполнять свои обязательства в сфере куль- туры, изложенные в Документе Краковского симпозиума по культурному насле- дию (…)

3.2.4 Право на образование См. также: á Том II: Хельсинки 1975 г. (Сотрудничество в гуманитарных и других областях > 3. Сотрудничество и обмены в области образования) á Том II: Мадрид 1983 г. (Сотрудничество в гуманитарных и других областях > 3. Сотрудничество и обмены в области образования) á Том II: Вена 1989 г. (Сотрудничество в гуманитарных и других областях > 3. Сотрудничество и обмены в области образования)

Вена 1989 г. (Сотрудничество в гуманитарных и других областях) (63) [Государства-участники] будут обеспечивать для всех доступ к различным видам и уровням образования без дискриминации по признаку расы, цвета кожи, пола, языка, религии, политических или иных убеждений, национального или социального происхождения, имущественного положения, рождения или иного обстоятельства. Копенгаген 1990 г. (34) Государства-участники будут стремиться гарантировать, чтобы лица, прина- длежащие к национальным меньшинствам, вне зависимости от необходимости изучать официальный язык или официальные языки соответствующего государс- тва, имели надлежащие возможности для обучения своему родному языку или на своем родном языке (…) В контексте преподавания истории и культуры в учебных заведениях они также будут учитывать историю и культуру национальных меньшинств.

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4.1 Национальные меньшинства

См. также: á I. 2.3.4 B: Верховный комиссар по делам национальных меньшинств á II. 4.2: Рома и синти á II. 5: Обязательства, относящиеся к вопросам равенства, толерантности и недискриминации

4.1.1 Защита прав человека и основных свобод, включая равенство возможностей и недискриминацию Хельсинки 1975 г. (Вопросы, относящиеся к безопасности в Европе: 1. (a) Декла- рация принципов, которыми государства-участники будут руководствоваться во взаимных отношениях; Принцип VII) VII. Уважение прав человека и основных свобод, включая свободу мысли, совести, религии и убеждений Государства-участники, на чьей территории имеются национальные меньшинс- тва, будут уважать право лиц, принадлежащих к таким меньшинствам, на равенс- тво перед законом, будут предоставлять им полную возможность фактического пользования правами человека и основными свободами и будут таким образом защищать их законные интересы в этой области. Мадрид 1983 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) [Государства-участники] также подчеркивают важность постоянного прогресса в обеспечении уважения прав лиц, принадлежащих к национальным меньшинс- твам, и их фактического пользования этими правами, а также в защите их закон- ных интересов, как предусматривается в Заключительном акте.

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Вена 1989 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) (18) Государства-участники будут предпринимать непрерывные усилия по осу- ществлению положений Заключительного акта и мадридского Итогового доку- мента, касающихся национальных меньшинств. Они будут принимать все необхо- димые законодательные, административные, юридические и другие меры, а также применять соответствующие международные инструменты, которыми они могут быть связаны, для обеспечения защиты прав человека и основных свобод лиц, принадлежащих к национальным меньшинствам на их территории. Они будут воздерживаться от любой дискриминации в отношении таких лиц и способство- вать осуществлению их законных интересов и чаяний в области прав человека и основных свобод. Копенгаген 1990 г. (30) Государства-участники признают, что вопросы, относящиеся к националь- ным меньшинствам, могут быть удовлетворительным образом решены только в демократических политических рамках, основанных на верховенстве закона, в условиях функционирования независимой судебной системы. Эти рамки гаран- тируют полное уважение прав человека и основных свобод, равные права и поло- жение всех граждан, свободное выражение всех их законных интересов и чая- ний, политический плюрализм, социальную терпимость и выполнение правовых норм, ставящих эффективные препятствия на пути злоупотребления государс- твенной властью. (…) Они далее подтверждают, что уважение прав лиц, принадлежащих к националь- ным меньшинствам, как части общепризнанных прав человека, является сущест- венным фактором мира, справедливости, стабильности и демократии в государс- твах-участниках. (31) Лица, принадлежащие к национальным меньшинствам, имеют право полно- стью и эффективно осуществлять свои права человека и основные свободы без какой-либо дискриминации и в условиях полного равенства перед законом. Государства-участники примут, в случае необходимости, специальные меры с целью гарантировать лицам, принадлежащим к национальным меньшинствам, полное равенство с другими гражданами в осуществлении прав человека и основ- ных свобод и пользовании ими. (32) Принадлежность лица к национальному меньшинству является предметом его личного выбора, и никакие неблагоприятные последствия не могут возникать из осуществления такого выбора. (…) Лица, принадлежащие к национальным меньшинствам, могут осуществлять свои права и пользоваться ими на индивидуальной основе, а также совместно с дру- гими членами своей группы. Для лица, принадлежащего к национальному мень-

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шинству, не может возникать никаких неблагоприятных последствий по причине осуществления или неосуществления любого из таких прав. (…) (35) Государства-участники будут уважать право лиц, принадлежащих к нацио- нальным меньшинствам, на эффективное участие в государственных делах, вклю- чая участие в делах, относящихся к защите и поощрению самобытности таких меньшинств. (…) (36) Государства-участники признают особую важность развития конструктив- ного сотрудничества между ними по вопросам национальных меньшинств. Такое сотрудничество имеет своей целью содействие взаимопониманию и доверию, дружественным и добрососедским отношениям, международному миру, безопас- ности и справедливости. Каждое государство-участник будет содействовать климату взаимного уваже- ния, понимания, сотрудничества и солидарности между всеми лицами, прожи- вающими на его территории, без различия этнического или национального про- исхождения или религии и будут поощрять решение проблем с помощью диалога, основанного на принципах верховенства закона. (37) Ни одно из этих положений не может толковаться как подразумевающее какое- либо право заниматься любой деятельностью или осуществлять любое действие вопреки целям и принципам Устава Организации Объединенных Наций, другим обязательствам по международному праву или положениям Заключительного акта, включая принцип территориальной целостности государств. (38) Государства-участники в своих усилиях по защите и поощрению прав лиц, принадлежащих к национальным меньшинствам, будут в полной мере соблюдать свои обязательства согласно существующим конвенциям по правам человека и другим соответствующим международным инструментам и рассмотрят вопрос о присоединении к соответствующим конвенциям, если они этого еще не сделали, включая конвенции, предусматривающие право отдельных лиц на жалобу. (39) Государства-участники будут тесно сотрудничать в компетентных между- народных организациях, членами которых они являются, включая Организа- цию Объединенных Наций и, в соответствующих случаях, Совет Европы, с уче- том проводимой ими работы в отношении вопросов, касающихся национальных меньшинств. Париж 1990 г. (Новая эра демократии, мира и единства) (…) Мы признаем далее, что права лиц, принадлежащих к национальным мень- шинствам, должны полностью уважаться как часть всеобщих прав человека. (…)

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Женева 1991 г. II. Государства-участники подчеркивают необходимость дальнейшего тщательного обзора выполнения их обязательств по СБСЕ в отношении лиц, принадлежащих к национальным меньшинствам. Они подчеркивают, что права человека и основные свободы составляют основу защиты и поощрения прав лиц, принадлежащих к национальным меньшинствам. (…) Вопросы, касающиеся национальных меньшинств, а также соблюдение обяза- тельств по международному праву и международных обязательств в отношении прав принадлежащих к ним лиц, являются вопросами, вызывающими законную международную озабоченность и, следовательно, не являются исключительно внутренним делом соответствующего государства. Они отмечают, что не все этнические, культурные, языковые или религиозные различия обязательно ведут к возникновению национальных меньшинств. III. (…) государства-участники считают, что в тех случаях, когда вопросы, касающи- еся положения национальных меньшинств, обсуждаются в их странах, им самим следует предоставлять возможность эффективно участвовать в этом процессе в соответствии с процедурами принятия решений каждого государства. (…) Они считают, что должны быть предприняты специальные усилия с целью реше- ния конкретных проблем конструктивным образом и на основе диалога посредс- твом переговоров и консультаций, с тем, чтобы улучшить положение лиц, прина- длежащих к национальным меньшинствам. Они признают, что содействие диа- логу между государствами и между государствами и лицами, принадлежащими к национальным меньшинствам, окажется наиболее успешным при наличии сво- бодного потока информации и идей между всеми сторонами. Они поощряют односторонние, двусторонние и многосторонние усилия правительств по изуче- нию возможностей повышения эффективности выполнения ими обязательств по СБСЕ, касающихся национальных меньшинств. Государства-участники считают далее, что уважение прав человека и основных свобод должно осуществляться на недискриминационной основе в рамках всего общества. На территориях, населенных в основном лицами, принадлежащими к национальному меньшинству, будут равным образом защищены права человека и основные свободы лиц, принадлежащих к этому меньшинству, лиц, принадлежа- щих к большинству населения соответствующего государства, и лиц, принадле- жащих к другим национальным меньшинствам, проживающим на этих террито- риях. (…)

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Они будут разрешать компетентным органам информировать Бюро по свобод- ным выборам о всех запланированных выборах в государственные органы на их территориях, включая выборы, проводимые на более низком, чем общенаци- ональный, уровне. Государства-участники будут благоприятно рассматривать, насколько это допускается законом, присутствие наблюдателей на выборах, про- водимых на более низком, чем общенациональный, уровне, включая выборы на территориях, населенных национальными меньшинствами, и будут стремиться облегчать им доступ. IV. Государства-участники будут создавать условия для обеспечения равной воз- можности лицам, принадлежащим к национальным меньшинствам, эффективно участвовать в государственной жизни, экономической деятельности и развитии их обществ. В соответствии с пунктом 31 Копенгагенского документа государства-участники примут необходимые меры для предотвращения дискриминации в отношении отдельных лиц, особенно в том, что касается занятости, жилья и образования, по причине принадлежности или непринадлежности к какому-либо националь- ному меньшинству. В этом контексте они обеспечат возможность, если они еще не сделали этого, для использования эффективных средств правовой защиты отде- льными лицами, подвергшихся дискриминационному обращению по причине их принадлежности или непринадлежности к какому-либо национальному мень- шинству, включая предоставление конкретным жертвам дискриминации широго круга административных и судебных средств правовой защиты. (…) Государства-участники подтверждают, что лица, принадлежащие к националь- ным меньшинствам, будут иметь такие же права и такие же обязанности граждан, как и остальная часть населения. (…) Они признают, что такие меры, учитывающие, в частности, исторические и терри- ториальные условия национальных меньшинств, особенно важны там, где демок- ратические институты еще консолидируются, а вопросы национальных мень- шинств вызывают особую озабоченность. Учитывая разнообразие и различие своих конституционных систем, в резуль- тате чего использование одного какого-либо общего подхода не является обяза- тельным, государства-участники отмечают с интересом, что некоторыми из них достигнуты соответствующим демократическим путем положительные резуль- таты посредством, в частности, (…) • двусторонних и многосторонних соглашений и других договоренностей, касаю- щихся национальных меньшинств;

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(…) • создания государственных исследовательских учреждений для рассмотрения законодательства и распространения информации, касающейся равных прав и недискриминации; (…) • государственной помощи для преодоления местных трудностей, связанных с дискриминационной практикой (например, служба взаимоотношений между гражданами); • поощрения усилий по установлению межобщинных отношений на низовом уровне между общинами меньшинств, между общинами большинства населения и меньшинств, и между соседними общинами в приграничных районах с целью содействия предотвращению возникновения напряженности на местах и мир- ного урегулирования конфликтов в случае их возникновения; и • поощрения создания постоянных смешанных комиссий, либо межгосударствен- ных, либо региональных, с целью поддержки постоянного диалога между соот- ветствующими приграничными районами. Государства-участники считают, что эти и другие подходы, индивдуально или в сочетании, могли бы содействовать улучшению положения национальных мень- шинств на их территориях. V. Государства-участники уважают право лиц, принадлежащих к национальным меньшинствам, осуществлять свои права и пользоваться ими на индивидуальной основе или совместно с другими гражданами, создавать и поддерживать органи- зации и ассоциации в пределах своей страны и участвовать в деятельности меж- дународных неправительственных организаций. (…) VI. Государства-участники, будучи обеспокоены ростом числа проявлений расовой, этнической и религиозной ненависти, антисемитизма, ксенофобии и дискрими- нации, подчеркивают свою решимость неизменно осуждать такие проявления в отношении кого бы то ни было. В этом контексте они вновь заявляют о своем признании особых проблем роман (цыган). Они готовы принять эффективные меры для достижения полного равенс- тва возможностей между лицами, принадлежащими к романам, обычно прожива- ющим в их государстве, и остальным населением. (…) Москва 1991 г. (37) Государства-участники подтверждают положения и обязательства, относящи- еся к проблемам национальных меньшинств и правам принадлежащих к ним лиц,

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содеражщиеся во всех документах СБСЕ, в частности в Документе Копенгаген- ского совещания Конференции по человеческому измерению СБСЕ и в Докладе Женевского совещания экспертов СБСЕ по вопросам национальных меньшинств, и призывают к их полному и скорейшему выполнению. Они полагают, что, в час- тности, применение новых и расширенных механизмов и процедур СБСЕ будет способствовать дальнейшей защите и поощрению прав лиц, принадлежащих к национальным меньшинствам. Хельсинки 1992 г. (Решения: II. Верховный комиссар СБСЕ по делам националь- ных меньшинств) (1) Государства-участники принимают решение учредить пост Верховного комис- сара по делам национальных меньшинств. (…) Хельсинки 1992 г. (Решения: VI. Человеческое измерение) Государства-участники (23) Подтверждают самым решительным образом свое намерение выполнять без промедления и добросовестно все свои обязательства по СБСЕ (…) в отношении вопросов, касающихся национальных меньшинств и прав принадлежащих к ним лиц. (24) В этой связи они активизируют свои усилия по обеспечению свободного осу- ществления принадлежащими к национальным меньшинствам лицами, на инди- видуальной основе и совместно с другими, своих прав человека и основных сво- бод, включая право участвовать в полной мере в соответствии с демократичес- кими процедурами принятия решений каждого государства в политической, эко- номической, социальной и культурной жизни своих стран (…) (25) Будут продолжать изучение на основе усилий в одностороннем, двусторон- нем и многостороннем порядке дальнейших возможностей более эффективного выполнения своих соответствующих обязательств по СБСЕ, включая обязательс- тва, связанные с защитой и созданием условий для поощрения этнической, куль- турной, языковой и религиозной самобытности национальных меньшинств. (26) Будут решать проблемы национальных меньшинств в конструктивном духе, мирными средствами и путем диалога между всеми заинтересованными сторо- нами на основе принципов и обязательств СБСЕ. (27) Будут воздерживаться от практики переселения и осуждать все попытки осу- ществить переселение, прибегая к угрозе силой или ее применению, с целью изме- нения этнического состава районов в пределах их территорий. Будапешт 1994 г. (Решения: VIII. Человеческое измерение) 21. Государства-участники подтверждают свою решимость последовательно спо- собствовать выполнению положений Заключительного акта и всех других доку- ментов СБСЕ, касающихся защиты прав лиц, принадлежащих к националь-

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ным меньшинствам. Они высоко оценивают работу, проводимую ВКНМ в этой области. 22. Государства-участники приветствуют международные усилия по улучшению защиты прав лиц, принадлежащих к национальным меньшинствам. Они отме- чают принятие в Совете Европы Рамочной конвенции о защите национальных меньшинств, которая основывается на нормах СБСЕ в этой области и развивает их. Они подчеркнули, что данная Конвенция также открыта для подписания по приглашению государствами, не являющимися членами Совета Европы; они могут рассмотреть вопрос об изучении возможности присоединения к ней. Лиссабон 1996 г. (Декларация о модели общей и всеобъемлющей безопасности для Европы XXI века) (10) (…) • в качестве важного вклада в укрепление безопасности мы вновь подтверждаем нашу решимость в полной мере уважать и выполнять все свои обязательства, касающиеся прав лиц, принадлежащих к национальным меньшинствам. Мы вновь подтверждаем свое намерение всецело сотрудничать с Верховным комис- саром по делам национальных меньшинств. Мы готовы откликнуться на про- сьбу любого государства-участника, стремящегося к решению проблем мень- шинств на своей территории; (…) Стамбул 1999 г. (Декларация встречи на высшем уровне) 30. Мы вновь подтверждаем свое твердое намерение обеспечить, чтобы законы и политические установки предусматривали полное уважение прав лиц, прина- длежащих к национальным меньшинствам (…) Мы также выступаем за принятие и полное применение всеобъемлющего антидискриминационного законодатель- ства, обеспечивающего полное равенство возможностей для всех. (…) Мы вновь подтверждаем, что будем наращивать свои усилия по выполнению рекомендаций Верховного комиссара по делам национальных меньшинств. Стамбул 1999 г. (Хартия европейской безопасности: III. Наш общий ответ) 19. (…) Защита и содействие осуществлению прав лиц, принадлежащих к нацио- нальным меньшинствам, являются важнейшими факторами обеспечения демок- ратии, мира, справедливости и стабильности в государствах-участниках и в отно- шениях между ними. (…) Полное уважение прав человека, включая права лиц, при- надлежащих к национальным меньшинствам, помимо того, что является самоце- лью, не может подрывать, но может укреплять территориальную целостность и суверенитет. (…) Мы осуждаем насилие в отношении любого меньшинства. Мы обязуемся принимать меры по воспитанию терпимости и построению плюралис- тических обществ, где всем, независимо от их этнического происхождения, обес- печено полное равенство возможностей. (…)

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4.1.2 Эффективное участие в общественной и политической жизни Копенгаген 1990 г. (35) Государства-участники будут уважать право лиц, принадлежащих к нацио- нальным меньшинствам, на эффективное участие в государственных делах, вклю- чая участие в делах, относящихся к защите и поощрению самобытности таких меньшинств. Государства-участники отмечают усилия, предпринятые с целью защиты и созда- ния условий для поощрения этнической, культурной, языковой и религиозной самобытности определенных национальных меньшинств путем создания в качес- тве одного из возможных средств для достижения этих целей, в соответствии с политикой заинтересованного государства, надлежащих местных или автоном- ных органов управления, отвечающих конкретным историческим и территори- альным условиям таких меньшинств. Женева 1991 г. III. Уважая право лиц, принадлежащих к национальным меньшинствам, на эффек- тивное участие в государственных делах, государства-участники считают, что в тех случаях, когда вопросы, касающиеся положения национальных меньшинств, обсуждаются в их странах, им самим следует предоставлять возможность эффек- тивно участвовать в этом процессе в соответствии с процедурами принятия реше- ний каждого государства. Они считают далее, что важным элементом эффектив- ного участия в государственных делах является соответствующее демократичес- кое участие лиц, принадлежащих к национальным меньшинствам, или их пред- ставителей в работе директивных или консультативных органов. Они считают, что должны быть предприняты специальные усилия с целью реше- ния конкретных проблем конструктивным образом и на основе диалога посредс- твом переговоров и консультаций, с тем, чтобы улучшить положение лиц, прина- длежащих к национальным меньшинствам. Они признают, что содействие диа- логу между государствами и между государствами и лицами, принадлежащими к национальным меньшинствам, окажется наиболее успешным при наличии сво- бодного потока информации и идей между всеми сторонами. (…) IV. Государства-участники будут создавать условия для обеспечения равной воз- можности лицам, принадлежащим к национальным меньшинствам, эффективно участвовать в государственной жизни, экономической деятельности и развитии их обществ. (…) Учитывая разнообразие и различие своих конституционных систем, в резуль- тате чего использование одного какого-либо общего подхода не является обяза-

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тельным, государства-участники отмечают с интересом, что некоторыми из них достигнуты соответствующим демократическим путем положительные резуль- таты посредством, в частности, • консультативных и директивных органов, в которых представлены меньшинс- тва, в частности, в том, что касается образования, культуры и религии; • выборных органов и ассамблей по делам национальных меньшинств; • местных и автономных органов управления, а также автономии на территори- альной основе, включая существование консультативных, законодательных и исполнительных органов, избираемых на основе свободных и периодических выборов; • самоуправления национального меньшинства в тех аспектах, которые касаются его самобытности, в ситуациях, когда не существует автономии на территори- альной основе; • децентрализованных или местных форм правления; (…) Государства-участники считают, что эти и другие подходы, индивдуально или в сочетании, могли бы содействовать улучшению положения национальных мень- шинств на их территориях. Хельсинки 1992 г. (Решения: VI. Человеческое измерение) Национальные меньшинства Государства-участники (…) (24) В этой связи они активизируют свои усилия по обеспечению свободного осу- ществления принадлежащими к национальным меньшинствам лицами, на инди- видуальной основе и совместно с другими, своих прав человека и основных сво- бод, включая право участвовать в полной мере в соответствии с демократичес- кими процедурами принятия решений каждого государства в политической, эко- номической, социальной и культурной жизни своих стран, в том числе на основе демократического участия в работе директивных и консультативных органов на национальном, региональном и местном уровнях, в частности, в рамках полити- ческих партий и ассоциаций. (…) Маастрихт 2003 г. (Решения: Решение No. 4/03: Толерантность и недискримина- ция) Совет министров, (…)

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10. Обеспечивает дальнейшее продвижение в деле выполнения обязательств ОБСЕ, касающихся национальных меньшинств, и признает важность рекоменда- ций Верховного комиссара по делам национальных меньшинств, касающихся (…) вовлечения общественности (…)

4.1.3 Культурная, языковая и религиозная самобытность и вопросы образования Хельсинки 1975 г. (Сотрудничество в гуманитарных и других областях) (…) Государства-участники, признавая вклад, который национальные меньшинс- тва или региональные культуры могут вносить в сотрудничество между ними в различных областях культуры, намерены в случае, когда на их территории име- ются такие меньшинства или культуры, способствовать этому вкладу с учетом законных интересов их членов. Вена 1989 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) (19) [Государства-участники] будут защищать и создавать условия для поощрения этнической, культурной, языковой и религиозной самобытности национальных меньшинств на своей территории. (…) Вена 1989 г. (Сотрудничество в гуманитарных и других областях) (45) [Государства-участники] будут обеспечивать на практике, чтобы лица, при- надлежащие к национальным меньшинствам или региональным культурам на их территории, могли распространять информацию на своем родном языке, иметь к ней доступ и обмениваться ею. (…) (59) [Государства-участники] будут обеспечивать, чтобы лица, принадлежащие к национальным меньшинствам или региональным культурам на их территории, могли сохранять и развивать свою собственную культуру во всех ее аспектах, включая язык, литературу и религию, и чтобы они могли сохранять свои культур- ные и исторические памятники и объекты. (…) (68) [Государства-участники] будут обеспечивать, чтобы лица, принадлежащие к национальным меньшинствам или региональным культурам на их территориях, могли давать или получать знания о своей собственной культуре, в том числе пос- редством передачи родителями своим детям языковой, религиозной и культур- ной самобытности. Копенгаген 1990 г. (32) (…) Лица, принадлежащие к национальным меньшинствам, имеют право сво- бодно выражать, сохранять и развивать свою этническую культурную, языко- вую или религиозную самобытность и поддерживать и развивать свою культуру

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во всех ее аспектах, не подвергаясь каким-либо попыткам ассимиляции вопреки своей воли. В частности, они имеют право: (32.1) свободно пользоваться своим родным языком в личной и общественной жизни; (32.2) создавать и поддерживать свои собственные образовательные, культурные и религиозные учреждения, организации или ассоциации, которые могут искать добровольную финансовую и другую помощь, а также государственную подде- ржку в соответствии с национальным законодательством; (32.3) исповедовать свою религию, в том числе приобретать, обладать и исполь- зовать религиозные материалы и осуществлять религиозную деятельность в области образования на своем родном языке; (…) (33) Государства-участники будут защищать этническую, культурную, языко- вую и религиозную самобытность национальных меньшинств на своей террито- рии и создавать условия для поощрения этой самобытности. Они будут прини- мать необходимые меры с этой целью после проведения надлежащих консульта- ций, включая контакты с организациями или ассоциациями таких меньшинств, в соответствии с процедурой принятия решений каждого государства. Любые такие меры будут соответствовать принципам равенства и недискримина- ции в отношении других граждан соответствующих государств-участников. (34) Государства-участники будут стремиться гарантировать, чтобы лица, прина- длежащие к национальным меньшинствам, вне зависимости от необходимости изучать официальный язык или официальные языки соответствующего государс- тва, имели надлежащие возможности для обучения своему родному языку или на своем родном языке, а также, там где это возможно и необходимо, для его исполь- зования в государственных органах в соответствии с применяемым националь- ным законодательством. В контексте преподавания истории и культуры в учебных заведениях они также будут учитывать историю и культуру национальных меньшинств. (35) Государства-участники будут уважать право лиц, принадлежащих к нацио- нальным меньшинствам, на эффективное участие в государственных делах, вклю- чая участие в делах, относящихся к защите и поощрению самобытности таких меньшинств. Государства-участники отмечают усилия, предпринятые с целью защиты и созда- ния условий для поощрения этнической, культурной, языковой и религиозной самобытности определенных национальных меньшинств путем создания в качес- тве одного из возможных средств для достижения этих целей, в соответствии с политикой заинтересованного государства, надлежащих местных или автоном- ных органов управления, отвечающих конкретным историческим и территори- альным условиям таких меньшинств.

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Париж 1990 г. (Новая эра демократии, мира и единства) Мы подтверждаем, что этническая, культурная, языковая и религиозная само- бытность национальных меньшинств будет защищена, и что лица, принадлежа- щие к национальным меньшинствам, имеют право свободно выражать, сохранять и развивать эту самобытность без какой-либо дискриминации и в условиях пол- ного равенства перед законом. (…) Исполненные решимости способствовать богатому вкладу национальных мень- шинств в жизнь наших обществ, мы обязуемся и впредь улучшать их положение. Мы вновь подтверждаем нашу глубокую убежденность в том, что дружественные отношения между нашими народами, а также мир, справедливость, стабильность и демократия требуют того, чтобы этническая, культурная, языковая и религиоз- ная самобытность национальных меньшинств была защищена и чтобы создава- лись условия для поощрения этой самобытности. (…) Женева 1991 г. (IV) (…) Государства-участники убеждены, что сохранение ценностей и культурного насле- дия национальных меньшинств требует участия лиц, принадлежащих к таким меньшинствам, и что терпимость и уважение различных культур имеют в этой связи важнейшее значение. С учетом этого они подтверждают важность возде- рживаться от создания препятствий в области производства культурных матери- алов, касающихся национальных меньшинств, в том числе лицами, принадлежа- щими к ним. (…) Учитывая разнообразие и различие своих конституционных систем, в резуль- тате чего использование одного какого-либо общего подхода не является обяза- тельным, государства-участники отмечают с интересом, что некоторыми из них достигнуты соответствующим демократическим путем положительные резуль- таты посредством, в частности, • консультативных и директивных органов, в которых представлены меньшинс- тва, в частности, в том, что касается образования, культуры и религии; (…) • самоуправления национального меньшинства в тех аспектах, которые касаются его самобытности, в ситуациях, когда не существует автономии на территори- альной основе; (…) • предоставления лицам, принадлежащим к национальным меньшинствам, доступа к соответствующим видам и уровням обучения на их родном языке с

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уделением должного внимания численности, географическим структурам рас- селения и культурным традициям национальных меньшинств; • финансирования преподавания языков меньшинств широкой общественности, а также включения языков меньшинств в программы педагогических учеб- ных заведений, в частности в районах, населенных лицами, принадлежащими к национальным меньшинствам; • в тех случаях, когда обучение по какой-либо конкретной дисциплине не может быть обеспечено на их территории на всех уровнях на языке меньшинств, путем принятия необходимых мер для определения способов признания дипломов, выданных за границей по завершении обучения на этом языке; (…) • предоставления финансовой и технической помощи лицам, принадлежащим к национальным меньшинствам, которые желают этого, для осуществления их права на создание и поддержание своих собственных образовательных, куль- турных и религиозных учреждений, организаций или ассоциаций; (…) Государства-участники считают, что эти и другие подходы, индивдуально или в сочетании, могли бы содействовать улучшению положения национальных мень- шинств на их территориях. Хельсинки 1992 г. (Решения: VI. Человеческое измерение) Национальные меньшинства Государства-участники (…) (25) Будут продолжать изучение на основе усилий в одностороннем, двусторон- нем и многостороннем порядке дальнейших возможностей более эффективного выполнения своих соответствующих обязательств по СБСЕ, включая обязательс- тва, связанные с защитой и созданием условий для поощрения этнической, куль- турной, языковой и религиозной самобытности национальных меньшинств. (…) Стамбул 1999 г. (Декларация встречи на высшем уровне) 30. Мы вновь подтверждаем свое твердое намерение обеспечить, чтобы законы и политические установки предусматривали полное уважение прав лиц, прина- длежащих к национальным меньшинствам, особенно в том, что касается вопро- сов, затрагивающих культурную самобытность. В частности, мы подчеркиваем требование о соответствии применимым международным стандартам и конвен- циям законов и политических установок, касающихся образовательных и языко- вых прав лиц, принадлежащих к национальным меньшинствам, а также их права на участие в жизни общества. (…)

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Стамбул 1999 г. (Хартия европейской безопасности: III. Наш общий ответ) 19. (…) Различные концепции автономии, а также другие обозначенные в вышеу- помянутых документах подходы, которые соответствуют принципам ОБСЕ, явля- ются средствами защиты и развития этнической, культурной, языковой и религи- озной самобытности национальных меньшинств в рамках существующего госу- дарства. (…) Маастрихт 2003 г. (Решения: Решение No. 4/03: Толерантность и недискримина- ция) Совет министров, (…) 10. Обеспечивает дальнейшее продвижение в деле выполнения обязательств ОБСЕ, касающихся национальных меньшинств, и признает важность рекомен- даций Верховного комиссара по делам национальных меньшинств, касающихся образования, (…) и вопросов языка, включая его использование на радио и теле- видении, а также соответствующих рекомендаций Представителя по вопросам свободы средств массовой информации в этой области;

4.1.4 Контакты между людьми, свобода СМИ и доступ к информации Вена 1989 г. (Сотрудничество в гуманитарных и других областях) (31) [Государства-участники] будут обеспечивать, чтобы статус лиц, принадлежа- щих к национальным меньшинствам или региональным культурам на их терри- ториях, был равным тому статусу, которым пользуются другие граждане в том, что касается контактов между людьми в соответствии с Заключительным актом и другими вышеупомянутыми документами СБСЕ, и чтобы эти лица могли уста- навливать и поддерживать такие контакты посредством поездок и других средств общения, включая контакты с гражданами других государств, с которыми их объ- единяет общее национальное происхождение или культурное наследие. (…) (45) [Государства-участники] будут обеспечивать на практике, чтобы лица, при- надлежащие к национальным меньшинствам или региональным культурам на их территории, могли распространять информацию на своем родном языке, иметь к ней доступ и обмениваться ею. Копенгаген 1990 г. (32) (…) Лица, принадлежащие к национальным меньшинствам (…) имеют право: (…) (32.4) устанавливать и поддерживать беспрепятственные контакты между собой в пределах своей страны, а также через границы с гражданами других государств, с которыми они имеют общее этническое или национальное происхождение, куль- турное наследие или религиозные верования;

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(…) Женева 1991 г. IV. (…) Учитывая разнообразие и различие своих конституционных систем, в резуль- тате чего использование одного какого-либо общего подхода не является обяза- тельным, государства-участники отмечают с интересом, что некоторыми из них достигнуты соответствующим демократическим путем положительные резуль- таты посредством, в частности, (…) • поощрения усилий по установлению межобщинных отношений на низовом уровне между общинами меньшинств, между общинами большинства населения и меньшинств, и между соседними общинами в приграничных районах с целью содействия предотвращению возникновения напряженности на местах и мир- ного урегулирования конфликтов в случае их возникновения; и • поощрения создания постоянных смешанных комиссий, либо межгосударствен- ных, либо региональных, с целью поддержки постоянного диалога между соот- ветствующими приграничными районами. Государства-участники считают, что эти и другие подходы, индивдуально или в сочетании, могли бы содействовать улучшению положения национальных мень- шинств на их территориях. (…) VII. Будучи убеждены, что для защиты прав лиц, принадлежащих к национальным меньшинствам, необходим свободный поток информации и обмен идеями, госу- дарства-участники подчеркивают значение общения между лицами, принадлежа- щими к национальным меньшинствам, без вмешательства со стороны государс- твенных властей и независимо от государственных границ. Осуществление таких прав может подвергаться лишь тем ограничениям, которые предусмотрены по закону и соответствуют международным стандартам. Они вновь подтверждают, что ни одно лицо, принадлежащее к национальному меньшинству, не будет под- вергнуто уголовным или административным санкциям, только лишь в силу своей принадлежности к такому меньшинству, за контакты в его/ее собственной стране или за ее пределами. В области доступа к средствам информации они не будут проводить дискрими- нацию в отношении кого-либо на основании этнической, культурной, языковой или религиозной принадлежности. Они будут предоставлять информацию, кото- рая будет помогать электронным средствам массовой информации учитывать в

170 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I I Национальные меньшинства

своих программах этническую, культурную, языковую и религиозную самобыт- ность национальных меньшинств. Они вновь подтверждают, что установление и поддержание беспрепятствен- ных контактов между лицами, принадлежащими к национальному меньшиснс- тву, а также контактов через границы лицами, принадлежащими к националь- ному меньшинству, с лицами, с которыми они имеют общее этническое или наци- ональное происхождение, культурное наследие или религиозные верования, спо- собствуют взаимопониманию и содействуют добрососедским отношениям. Поэтому они будут поощрять договоренности о трансграничном сотрудничес- тве на национальном, региональном и местном уровне, в частности, по вопросам пересечения границ местными жителями, сохранения и посещения культурных и исторических памятников и мест, туризма, улучшения транспортного сообщения, экономики, молодежных обменов, защиты окружающей среды и создания регио- нальных комиссий. Они также будут поощрять создание неофициальных рабочих структур (напри- мер, семинаров, комитетов, как в рамках государств-участников, так и между государствами-участниками) там, где проживают национальные меньшинства, для обсуждения, обмена опытом и представления предложений по вопросам, касающимся национальных меньшинств. С целью улучшения своей информации о фактическом положении национальных меньшинств государства-участники будут на добровольной основе направлять через Секретариат СБСЕ информацию другим государствам-участникам о фак- тическом положении национальных меньшинств на их соответствующих терри- ториях, а также заявления по вопросам национальной политики в этом отноше- нии. Государства-участники сдадут на хранение в Секретариат СБСЕ экземпляры вкладов, сделанных в ходе пленарных заседний Совещания экспертов СБСЕ по вопросам национальных меньшинств, которые они хотят сделать доступными для общественности.

4.1.5 Роль организаций и объединений Копенгаген 1990 г. (30) (…) [Государства-участники] также признают важную роль неправительс- твенных организаций, включая политические партии, профсоюзы, организации по правам человека и религиозные группы, в поощрении терпимости, культур- ного многообразия и в решении вопросов, относящихся к национальным мень- шинствам. (…) (32) Лица, принадлежащие к национальным меньшинствам (…) имеют право:

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(32.2) создавать и поддерживать свои собственные образовательные, культурные и религиозные учреждения, организации или ассоциации, которые могут искать добровольную финансовую и другую помощь, а также государственную подде- ржку в соответствии с национальным законодательством; (…) (32.6) создавать и поддерживать организации или ассоциации в пределах своей страны и участвовать в деятельности международных неправительственных организаций. Женева 1991 г. IV. (…) Учитывая разнообразие и различие своих конституционных систем, в резуль- тате чего использование одного какого-либо общего подхода не является обяза- тельным, государства-участники отмечают с интересом, что некоторыми из них достигнуты соответствующим демократическим путем положительные резуль- таты посредством, в частности, (…) • предоставления финансовой и технической помощи лицам, принадлежащим к национальным меньшинствам, которые желают этого, для осуществления их права на создание и поддержание своих собственных образовательных, куль- турных и религиозных учреждений, организаций или ассоциаций; (…) Государства-участники считают, что эти и другие подходы, индивдуально или в сочетании, могли бы содействовать улучшению положения национальных мень- шинств на их территориях. V. Государства-участники уважают право лиц, принадлежащих к национальным меньшинствам, осуществлять свои права и пользоваться ими на индивидуальной основе или совместно с другими гражданами, создавать и поддерживать органи- зации и ассоциации в пределах своей страны и участвовать в деятельности меж- дународных неправительственных организаций. Государства-участники вновь подтверждают право лиц, принадлежащих к нацио- нальным меньшинствам, создавать и поддерживать свои собственные образова- тельные, культурные и религиозные учреждения, организации и ассоциации и не будут препятствовать осуществлению этого права. В этой связи они признают ту жизненно важную роль, которую играют отдельные лица, неправительственные организации и религиозные и другие группы в деле оказания содействия взаимопониманию между различными культурами и улуч-

172 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I I Национальные меньшинства

шения отношений на всех уровнях общества, а также через международные гра- ницы. Они считают, что непосредственные наблюдения и опыт таких организаций, групп и отдельных лиц могут оказаться весьма полезными для поощрения выпол- нения обязательств по СБСЕ, касающихся лиц, принадлежащих к национальным меньшинствам. Поэтому они будут поддерживать работу таких организаций, групп и отдельных лиц, не будут препятствовать ей и будут приветствовать их вклады в этой области.

4.1.6 Защита от преступлений на почве ненависти Женева 1991 г. VI. Государства-участники, будучи обеспокоены ростом числа проявлений расовой, этнической и религиозной ненависти, антисемитизма, ксенофобии и дискрими- нации, подчеркивают свою решимость неизменно осуждать такие проявления в отношении кого бы то ни было. В этом контексте они вновь заявляют о своем признании особых проблем роман (цыган). Они готовы принять эффективные меры для достижения полного равенс- тва возможностей между лицами, принадлежащими к романам, обычно прожи- вающим в их государстве, и остальным населением. Они будут также поощрять исследования и изыскания, касающиеся роман и тех особых проблем, с которыми они сталкиваются. Они будут принимать эффективные меры для поощрения терпимости, взаимо- понимания и равенства возможностей, и добрых взаимоотношений между имею- щими различное происхождение отдельными лицами в пределах их страны. Государства-участники будут также принимать эффективные меры, включая при- нятие, в соответствии с их конституционным правом и их международными обязательствами, если они еще не сделали этого, законов, которые запрещали бы акты, представляющие собой подстрекательство к насилию, основанному на национальной, расовой, этнической или религиозной дискриминации, враждеб- ности или ненависти, включая антисемитизм, проводить политику, направлен- ную на обеспечение соблюдения таких законов. Кроме того, с целью более полного осознания общественностью предрассудков и ненависти, совершенствования соблюдения законов о преступлениях, связан- ных с ненавистью, а также с целью осуществления иных дальнейших усилий по преодолению ненависти и предрассудков в обществе, они будут прилагать усилия с целью сбора, издания на регулярной основе и предоставления в распоряжение общественности данных о преступлениях на своих соответствующих террито- риях, в основе которых лежат предрассудки в отношении расы, этнического про- исхождения или религии, включая руководящие принципы, используемые для

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сбора таких данных. Эти данные не должны содержать информации о конкрет- ных лицах. Они будут консультироваться и обмениваться мнениями и информацией на меж- дународном уровне, в том числе на будущих совещаниях СБСЕ, о преступлениях, которые свидетельствуют о наличии предрассудков и ненависти.

4.2 Рома и синти

См. также: á I. 2.3.4 A: Бюро по демократическим институтам и правам человека (БДИПЧ) á I. 2.3.4 A. III: Контактный пункт БДИПЧ по вопросам рома и синти á II. 5: Обязательства, относящиеся к вопросам равенства, толерантности и недискриминации

4.2.1 Защита прав человека и основных свобод, включая равенство возможностей и недискриминацию Женева 1991 г. (VI) (…) [Государства-участники] готовы принять эффективные меры для достиже- ния полного равенства возможностей между лицами, принадлежащими к рома- нам, обычно проживающим в их государстве, и остальным населением. Они будут также поощрять исследования и изыскания, касающиеся роман и тех особых про- блем, с которыми они сталкиваются. Будапешт 1994 г. (Решения: VIII. Человеческое измерение) 23. Государства-участники постановляют создать в БДИПЧ пункт для контактов по вопросам, касающимся народности рома и синти (цыган). (…) 24. Государства-участники приветствуют мероприятия, проводимые другими международными организациями и институтами, в частности Советом Европы, по вопросам, касающимся рома и синти (цыган). Стамбул 1999 г. (Декларация встречи на высшем уровне) 31. (…) Мы обязуемся обеспечить, чтобы законодательство и политические уста- новки предусматривали полное уважение прав рома и синти, и там, где это необ- ходимо, содействовать принятию соответствующего антидискриминационного законодательства. (…) Стамбул 1999 г. (Хартия европейской безопасности: III. Наш общий ответ) 20. Мы признаем особые трудности, с которыми сталкиваются рома и синти, и необходимость принятия эффективных мер, чтобы добиться полного равенства возможностей для лиц, принадлежащих к рома и синти, соответствующего при- нятым в ОБСЕ обязательствам. Мы будем наращивать свои усилия для обеспече- ния того, чтобы рома и синти могли стать полноправными членами общества, а также для искоренения дискриминации в их отношении.

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Маастрихт 2003 г. (Решения: Решение No. 3/03: План действий по улучшению положения рома и синти в регионе ОБСЕ) Совет министров, (…) признавая особые трудности, с которыми сталкиваются рома и синти, и необхо- димость принятия эффективных мер с целью искоренить дискриминацию про- тив них и обеспечить равенство возможностей в соответствии с принятыми в ОБСЕ обязательствами, признавая достижение прогресса в области национального законодательства и программ действий, а также существенные усилия, предпринятые с этой целью государствами-участниками, сознавая в то же время, что для улучшения повсюду в регионе ОБСЕ положения населения, принадлежащего к народностям рома и синти, по прежнему необхо- димы решительные действия (…) будучи убежден, что рома и синти должны во все возрастающей степени прини- мать на себя ответственность за формирование адресованной им политики, постановляет одобрить План действий по улучшению положения рома и синти в регионе ОБСЕ, принятый Решением No. 566 Постоянного совета от 27 ноября 2003 года и приводимый в Приложении к настоящему Решению. Маастрихт 2003 г. (Решения: Приложение к Решению No. 3/03: План действий по улучшению положения рома и синти в регионе ОБСЕ) II. Общий контекст: в интересах народности рома, вместе с ними 4. В каждой из стран политика и стратегия должны: 1) откликаться на реаль- ные проблемы, нужды и приоритеты общин рома и синти; 2) носить комплекс- ный характер; 3) предусматривать сбалансированный и поддающийся системати- ческому применению подход, увязывающий правозащитные цели с социальной политикой; и 4) максимально повышать роль цыган в определении затрагиваю- щей их политики. (…) Кроме того, в стратегиях осуществления должны быть пре- дусмотрены механизмы, обеспечивающие проведение в жизнь общегосударствен- ной политики на местном уровне. 5. Государствам-участникам и соответствующим институтам ОБСЕ следует руко- водствоваться в своих усилиях тем принципом, что любая политика и стратегия осуществления должны разрабатываться и реализовываться при активном учас- тии общин рома и синти. Безусловно, необходимо обеспечить реальное участие рома и синти в принятии любых решений, влияющих на их жизнь. В разработке этих стратегий рома и синти должны участвовать рука об руку с представителями местных, национальных и международных органов. Что не менее важно, цыганс- кие общины должны выступать в качестве равноправных партнеров и нести свою долю ответственности за повышение своего благосостояния.

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6. При разработке и реализации любой политики и программ должно учиты- ваться особое положение цыганских женщин. Там, где существуют совещатель- ные и иные механизмы содействия участию рома и синти в таком процессе опре- деления политики, женщины должны иметь возможность участвовать в этой работе наравне с мужчинами. Проблемы цыганских женщин должны системати- чески учитываться в любых соответствующих политических решениях, касаю- щихся всего населения. III. Борьба с расизмом и дискриминацией (…) Законодательство и правоохранительная деятельность Рекомендуемые действия государств-участников: (…) 8. Принять и применять эффективное антидискриминационное законодательс- тво в целях борьбы с дискриминацией по расовому и этническому признаку во всех сферах, включая, в частности, доступ к жилью, вопросы гражданства и пос- тоянного проживания, образование, занятость, медицинское обслуживание и социальные услуги. Привлекать представителей рома и синти к работе по концеп- туализации, реализации и оценке. 9. Антидискриминационное законодательство должно предусматривать: • запрет как прямой, так и косвенной расовой дискриминации; • введение эффективных и пропорциональных санкций, достаточных для предуп- реждения актов или практики дискриминации; (…) • равный доступ к эффективной средствам правовой защиты (судебным или административным процедурам, процедурам примирения или посредничес- тва). 10. Необходимо обеспечить, чтобы национальное законодательство запрещало любые акты дискриминации, а также чтобы все случаи предположительной диск- риминации тщательно и объективно расследовались. 11. Создать в соответствующих случаях специализированные институты, обес- печивающие применение такого законодательства, а также национальные меха- низмы наблюдения за ходом его применения и регулярного представления об этом докладов в условиях транспарентности. Побуждать представителей рома и синти к участию в работе таких органов, которая должна быть доступной для общественности. 12. Разрабатывать там, где это необходимо, всеобъемлющие национальные стра- тегии или планы действий по улучшению положения рома и синти, включающие конкретные меры по противодействию дискриминации во всех областях жизни.

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13. Регулярно оценивать — особенно на местном уровне — результаты осущест- вления таких стратегий и привлекать общины рома и синти к процессу оценки. (…) 15. Документально регистрировать с соблюдением национальных и международ- ных норм защиты данных все виды и соответствующие случаи дискриминации, с тем, чтобы иметь возможность лучше оценивать ситуацию и откликаться на нужды рома и синти. (…) 17. Не допускать безнаказанности виновных в актах дискриминации или наси- лия, в частности, путем незамедлительного принятия полицией эффективных мер по расследованию и наказанию соответствующих лиц. 18. Облегчать рома и синти доступ к правосудию с помощью таких мер, как пра- вовая помощь и предоставление информации на цыганском языке. 19. При разработке всех мер и программ принимать во внимание положение цыганских женщин, которые зачастую становятся жертвами дискриминации, мотивированной и их этническим происхождением, и полом. (…) Средства массовой информации Рекомендуемые действия государств-участников: (…) 37. В целях содействия свободе выражения мнений поощрять профессиональную подготовку журналистов-цыган и их прием на работу в органы массовой инфор- мации в целях расширения доступа рома и синти к средствам массовой инфор- мации. (…) IX. Контактный пункт БДИПЧ по вопросам рома и синти (…) 136. В целях облегчения процесса обзора выполнения приветствуются представ- ление государствами-участниками ОБСЕ в ходе совещаний по рассмотрению выполнения, посвященных человеческому измерению, перед конференциями по обзору, а также на заседаниях Постоянного совета — в зависимости от того, что целесообразно, — информации о недавних событиях, влияющих на положение рома и синти, и/или о мерах, принятых в духе настоящего Плана действий. 137. Все соответствующие институты и структуры ОБСЕ, включая операции ОБСЕ на местах, будут продолжать тесно взаимодействовать с государствами-участни- ками в целях оказания им помощи в выполнении Плана действий.

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4.2.2 Эффективное участие в общественной и политической жизни Хельсинки 1992 г. (Решения: VI. Человеческое измерение) (35) [Государства-участники] вновь подтверждают в этой связи необходимость разработки соответствующих программ, направленных на решение проблем их граждан, принадлежащих к общинам рома и другим группам, традиционно назы- ваемым цыганами, а также необходимость создания условий, в которых эти лица будут иметь равные возможности в полной мере участвовать в жизни общества, и изучат пути сотрудничества для достижения этой цели. Маастрихт 2003 г. (Решения: Приложение к Решению No. 3/03: План действий по улучшению положения рома и синти в регионе ОБСЕ) VI. Расширение участия в общественно-политической жизни Рекомендуемые действия государств-участников: 87. Государства-участники должны проявлять инициативу в обеспечении того, чтобы у рома и синти, как и у всех других жителей, имелись все необходимые документы, включая свидетельства о рождении, удостоверения личности и полисы медицинского страхования. Проблемы, связанные с отсутствием основ- ных документов, государствам-участникам настоятельно рекомендуется решать на основе партнерского взаимодействия с общественными организациями рома и синти. 88. Желательно, чтобы государства-участники принимали во внимание следую- щие основные предпосылки обеспечения эффективного участия рома и синти в общественно-политической жизни: • вовлечение на раннем этапе: любая инициатива, касающаяся рома и синти, должна предусматривать их как можно раннее вовлечение в нее на этапах разработки, осуществления и оценки; • всеобщий охват: рома и синти должны быть охвачены формальными процессами консультаций, причем эффективность механизмов, созданных для их участия в выработке важ- нейших политических инициатив, должна обеспечиваться за счет их вовлечения в процесс, характеризующийся широкой представительностью; • транспарентность: программы и предложения должны распространяться за достаточно долгое время до наступления сроков принятия решений, с тем, чтобы представители общин рома и синти могли подвергнуть их содержательному анализу и внести в них свой вклад;

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• реальное участие рома и синти в государственном управлении на всех уровнях: участие рома и синти в местных органах государственного управления совер- шенно необходимо для эффективного осуществления затрагивающей их поли- тики; • собственная ответственность: рома и синти играют важнейшую и незаменимую роль в обеспечении практичес- кого соблюдения их права на участие в политическом процессе. 89. Выборные должностные лица должны устанавливать тесные рабочие кон- такты с общинами рома и синти. 90. Создавать механизмы для обеспечения равноправного, прямого и открытого диалога между представителями рома и синти и государственными властями, включая совещательные и консультативные органы. 91. Облегчать взаимодействие между политическими лидерами местного и наци- онального уровня и различными цыганскими объединениями. 92. Организовывать кампании по повышению осведомленности о выборах в целях расширения участия в них цыганского электората. 93. Обеспечить избирателям-цыганам возможность делать свободный и инфор- мированный выбор. 94. Принимать меры, гарантирующие женщинам равное право голоса, в том числе обеспечивая соблюдение запретов на так называемое “семейное голосование”. 95. Поощрять рома и синти к более активному участию в работе государственных и общественных служб, включая, при необходимости, специальные меры, спо- собствующие их привлечению на работу в государственный аппарат. 96. Поощрять представительство рома и синти на выборных должностях и пос- тах, замещаемых путем назначения, на всех уровнях государственного управле- ния. 97. Повышать гражданский потенциал рома и синти и вовлекать их в процессы принятия решений государственного и местного уровня в качестве выборных представителей своих общин и граждан своих стран. 98. Способствовать участию цыганских женщин в общественно-политичес- кой жизни; цыганские женщины должны иметь возможность наравне с мужчи- нами участвовать в консультативных и иных механизмах, призванных расширять доступ ко всем сферам общественно-политической жизни.

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4.2.3 Доступ к образованию Маастрихт 2003 г. (Решения: Приложение к Решению No. 3/03: План действий по улучшению положения рома и синти в регионе ОБСЕ) V. Улучшение доступа к образованию Образование является одной из предпосылок участия рома и синти в полити- ческой и социально-экономической жизни своих стран на равноправной с дру- гими основе. Незамедлительное принятие в этой области действенных мер, осо- бенно способствующих лучшей посещаемости школьных занятий и направлен- ных на борьбу с неграмотностью, должно рассматриваться в качестве одного из наивысших приоритетов как руководством, так и цыганскими общинами. Поли- тика в области образования должна быть нацелена на интеграцию рома и синти в общую систему образования путем предоставления полного и равного доступа к нему на всех уровнях при сохранении внимания к культурной специфике. Рекомендуемые действия государств-участников: 67. Обеспечить, чтобы национальное законодательство включало надлежащие положения о запрете расовой сегрегации и дискриминации в области образова- ния и предусматривало эффективные меры правовой защиты при нарушениях такого законодательства. 68. Консультироваться с представителями рома и синти при выработке затраги- вающей их политики в области образования. 69. Активно способствовать предоставлению детям рома и синти равных возмож- ностей в области образования, особенно путем оказания им языковой или иной помощи. 70. Принимать особые меры к повышению качества и эффективности образова- ния для детей рома и синти. Поощрять более широкую представленность рома и синти в преподавательском составе школ. 71. Включать в учебные пособия материалы по истории и культуре цыган, уделяя особое внимание судьбе рома и синти в период Холокоста. 72. Рассмотреть вопрос о принятии мер, обеспечивающих организацию препода- вания, уважение, защиту и распространение цыганского языка, а также цыганс- кой культуры как неотъемлемой части культурного наследия рома и синти. 73. Разрабатывать и осуществлять всеобъемлющие программы десегрегации в школах, направленные на: 1) прекращение практики систематического направле- ния цыганских детей в специальные школы или классы (например, в школы для умственно отсталых, в школы и классы, предназначенные исключительно для детей рома и синти); и 2) перевод цыганских детей из специальных школ в общие. 74. Выделять средства для финансирования перевода цыганских детей в общую систему образования и разработки программ школьной поддержки, призванных облегчить такой переход в общую систему образования.

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75. Облегчать цыганским детям доступ в общую систему образования путем при- нятия таких мер, как: a) меры по искоренению в школах случаев проявления предрассудков в отноше- нии рома и синти; b) подготовка педагогических кадров в области поликультурного образования и работы с этнически неоднородными классами; c) разработка стратегии обеспечения более широкой поддержки местной обще- ственностью мер по десегрегации школ; d) оказание поддержки усилиям по преодолению разрыва между детьми рома и синти и другими учениками, в том числе путем осуществления программ для дошкольников, рассчитанных на подготовку детей рома и синти к поступлению в начальную школу; e) оказание поддержки в целях увеличения числа посредников/воспитателей и учителей из числа членов цыганских общин. 76. Разрабатывать и реализовывать учебные программы антирасистской направ- ленности для школ, а также кампании по борьбе с расизмом для средств массо- вой информации. 77. Выработать политику противодействия всему комплексу факторов, способс- твующих низкой посещаемости школьных занятий детьми рома и синти. Это, в частности, включает обеспечение семей рома и синти необходимой документа- цией, позволяющей им регистрироваться наравне со всеми другими жителями. 78. Рассмотреть вопрос о выработке программ социальной поддержки малообес- печенных цыганских семей, имеющих детей школьного возраста. 79. Поощрять регулярное посещение детьми рома и синти школьных занятий и, в частности, вовлекать в это дело членов семей и социальных посредников, содейс- твуя осознанию родителями из числа рома и синти и цыганскими старейшинами своей ответственности за создание условий для посещения детьми школьных занятий и особенно за предоставление девочкам равного доступа к образованию. 80. Уделять особое внимание обеспечению цыганским девочкам равных возмож- ностей для получения образования и приобщения к социальной жизни и разраба- тывать программы по снижению процента бросающих учебу, который среди них особенно высок. 81. Рассмотреть вопрос о разработке соответствующих программ для не закон- чивших начальную школу и неграмотных. 82. Разрабатывать, там где это необходимо, программы предоставления стипен- дий студентам-цыганам и поощрять их более широкое участие в существующих программах предоставления стипендий. 83. Способствовать повышению компьютерной грамотности среди рома и синти путем создания информационных веб-сайтов.

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84. Проводить периодическую оценку эффективности политики в области обра- зования.

4.2.4 Социально-экономические проблемы Стамбул 1999 г. (Декларация встречи на высшем уровне) 31. (…) Мы подчеркиваем необходимость уделять пристальное внимание про- блеме социальной изоляции рома и синти. Ответственность в этих вопросах лежит главным образом на соответствующих государствах-участниках. (…) Маастрихт 2003 г. (Решения: Приложение к Решению No. 3/03: План действий по улучшению положения рома и синти в регионе ОБСЕ) IV. Решение социально-экономических проблем (…) Жилье и условия жизни Рекомендуемые действия государств-участников: 43. Создать механизмы и административно-правовые процедуры, призванные конкретизировать имущественные права, разрешить вопросы собственности и упорядочить правовой статус рома и синти в тех случаях, когда вопрос о закон- ности их проживания не урегулирован (например, поселения цыган в отсутствие прав на землю или поселения, не включенные в земельный план основного насе- ленного пункта; не имеющие узаконенного жилищного статуса семьи и дома в поселениях, где соответствующие лица фактически проживают уже десятки лет). 44. Привлекать рома и синти к определению жилищной политики, а также к реа- лизации проектов по строительству, восстановлению и/или содержанию в долж- ном порядке государственного жилья, осуществляемых в их интересах. Не допус- кать, чтобы жилищные проекты способствовали этнической и/или расовой сег- регации. 45. Рассмотреть возможность предоставления гарантий по ссудам, которые могут быть получены государствами-участниками от международных организаций и финансовых учреждений на нужды строительства жилья для малоимущих. 46. Поощрять кооперативное строительство жилья для цыганских общин и обес- печивать необходимое обучение содержанию таких объектов в должном порядке. (…) Безработица и экономические проблемы Рекомендуемые действия государств-участников: 48. Содействовать увеличению числа обладающих должной квалификацией рома и синти среди работников государственного сектора. 49. Разработать учебные программы для подготовки слабо представленных групп населения, таких, как рома и синти, к работе в местных органах государствен-

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ного управления и в других сферах и политику поощрения найма на гражданскую службу выпускников этих программ. 50. Произвести переоценку результатов осуществления программ субсидиро- ванного трудоустройства, уделяя особое внимание тем их компонентам, которые касаются образования, с тем, чтобы обеспечить их направленность на повышение конкурентоспособности рома и синти на рынке труда. 51. Разработать политику и программы, в том числе в области профессионально- технического обучения, призванные повышать у рома и синти — особенно из числа молодежи и женщин — пользующиеся рыночным спросом профессиональ- ные навыки и пригодность к трудоустройству. 52. Проводить социальную политику, нацеленную на увеличение стимулов к поиску работы, в качестве надежного способа избежания зависимости от соци- альных выплат. Рекомендуемые действия институтов и структур ОБСЕ: 53. БКДЭОС совместно с соответствующими международными организациями будет по просьбе государств-участников вносить свой вклад в разработку подхо- дов к преодолению преград и дискриминации, мешающих цыганам реализовать свой потенциал в экономической сфере. 54. По просьбе государств-участников БДИПЧ-КПРС и БКДЭОС будут оказы- вать помощь в развитии у рома и синти профессиональных навыков, необходи- мых для работы по найму и в качестве предпринимателей, путем организации в государствах-участниках программ профессиональной подготовки и перепод- готовки. Успешные проекты, особенно касающиеся обучения предприниматель- ским навыкам и развития малых и средних предприятий (МСП) (например, про- грамма семинаров для молодых предпринимателей), могли бы быть адаптиро- ваны к нуждам рома и синти. Кроме того, БКДЭОС могло бы содействовать их вовлечению в социально-экономическую жизнь, выступая в роли катализатора поддержки организациями и финансовыми учреждениями-партнерами про- грамм микрокредитования, предусматривающих выделение малых ссуд на созда- ние малых предприятий. 55. БКДЭОС, действуя в тесном контакте и сотрудничестве с другими междуна- родными организациями во избежание дублирования усилий, может помогать правительствам в оценке воздействия экономической политики и процессов на общины рома и синти (путем разработки показателей для оценки осуществления/ эффективности политики). 56. БДИПЧ-КПРС и БКДЭОС будут использовать результаты работы ПРООН и других учреждений по изучению потребностей рома и синти в целях поддержки политики, учитывающей масштабы и характер их особых потребностей в каждом государстве-участнике.

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57. Координируя свои действия с соответствующими международными органи- зациями (в частности, ПРООН и Всемирным банком) БДИПЧ-КПРС и БКДЭОС рассмотрят способы расширения доступа рома и синти к обычным програм- мам обучения. Могут быть организованы семинары-практикумы или дискус- сии за “круглым столом”, ориентированные на потребности рома и синти, с целью информирования и просвещения членов их общин в том, что касается социально- экономических прав личности и прав предпринимателей. Медицинское обслуживание Рекомендуемые действия государств-участников: 58. Обеспечить рома и синти доступ к медицинскому обслуживанию на недиск- риминационной основе. 59. Повышать осведомленность медицинского персонала об особых нуждах цыганского населения. 60. Принять меры по преодолению высокой заболеваемости и недоедания в цыганских общинах. 61. Поощрять расширение доступа рома и синти к общим службам здравоохране- ния на раннем этапе путем: а) информирования рома и синти о наличии таких служб и о том, как воспользо- ваться их услугами; b) повышения доверия рома и синти к государственным медицинским учреж- дениям, в частности посредством наказания виновных в прямой или косвенной дискриминации по отношению к рома и синти; улучшения понимания работни- ками медицинских учреждений соответствующих аспектов цыганской культуры; и оказания поддержки посредникам, которые могут играть важную роль в пре- одолении отчужденности между цыганскими общинами и учреждениями здра- воохранения. 62. Уделять особое внимание здоровью женщин и девочек, в частности, путем: a) поддержки и/или разработки программ распространения информации по воп- росам здравоохранения (включая питание, уход за новорожденными, бытовое насилие и т. п.); b) расширения доступа к гинекологической помощи, включая медицинскую помощь в предродовой период, при родах и после родов, в частности путем рас- пространения информации и обучения. 63. Уделять особое внимание здоровью детей рома и синти путем предоставления соответствующей педиатрической помощи, включая профилактические меры — такие, как добровольная вакцинация в цыганских поселениях.

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4.2.5 Расизм и дискриминация A. Борьба с расизмом и негативными стереотипами Копенгаген 1990 г. (40) Государства-участники четко и безоговорочно осуждают тоталитаризм, расо- вую и этническую ненависть, антисемитизм, ксенофобию и дискриминацию про- тив кого бы то ни было, а также преследование по религиозным и идеологическим мотивам. В этом контексте они также признают особые проблемы роман (цыган). Женева 1991 г. (VI) Государства-участники, будучи обеспокоены ростом числа проявлений расовой, этнической и религиозной ненависти, антисемитизма, ксенофобии и дискрими- нации, подчеркивают свою решимость неизменно осуждать такие проявления в отношении кого бы то ни было. В этом контексте они вновь заявляют о своем признании особых проблем роман (цыган). Они готовы принять эффективные меры для достижения полного равенс- тва возможностей между лицами, принадлежащими к романам, обычно прожи- вающим в их государстве, и остальным населением. Они будут также поощрять исследования и изыскания, касающиеся роман и тех особых проблем, с которыми они сталкиваются. Стамбул 1999 г. (Декларация встречи на высшем уровне) 31. Мы с сожалением констатируем акты насилия и другие проявления расизма и дискриминации в отношении меньшинств, включая рома и синти. (…) Маастрихт 2003 г. (Решения: Приложение к Решению No. 3/03: План действий по улучшению положения рома и синти в регионе ОБСЕ) III. Борьба с расизмом и дискриминацией Законодательство и правоохранительная деятельность Рекомендуемые действия государств-участников: 7. Рассмотреть вопрос о ратификации в возможно кратчайшие сроки — если этого еще не было сделано — соответствующих международных договоров, и в частности Международной конвенции о ликвидации всех форм расовой дискри- минации. (…) 14. Стремиться путем поощрения подлинного диалога или консультаций либо иными соответствующими средствами к улучшению отношений между рома и синти и другими жителями, руководствуясь целью повышения толерантности, преодоления предубеждений и изжития негативных стереотипов с обеих сторон. (…)

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Полиция Рекомендуемые действия государств-участников: 26. Разработать политику повышения осведомленности сотрудников правоохра- нительных органов о положении рома и синти и преодоления предубеждений и негативных стереотипов. 27. Разработать программы профессиональной подготовки, ориентированной на предотвращение чрезмерного применения силы, более глубокое понимание и ува- жение прав человека. 28. Разработать политику, призванную: 1) улучшить отношения между общинами рома и синти и полицией, с тем, чтобы предупредить жестокое обращение и наси- лие в отношении рома и синти со стороны полиции; и 2) повысить веру в поли- цию и доверие к ней со стороны рома и синти. (…) 30. Произвести — на основе консультаций с национальной полицией, НПО и представителями общин рома и синти — оценку расхождений между существу- ющей национальной практикой и международными нормами в области полицей- ской деятельности. 31. Разработать — там, где это необходимо, и в тесном партнерстве с междуна- родными организациями и цыганскими НПО — директивные установки, кодексы поведения, практические руководства и программы подготовки кадров. 32. Побуждать рома и синти к поступлению на работу в правоохранительные органы в качестве надежного средства повышения толерантности и разнообра- зия. (…) Средства массовой информации Рекомендуемые действия государств-участников: 36. Развернуть информационно-пропагандистские кампании, нацеленные на борьбу с предубеждениями против рома и синти и преодоление связанных с ними негативных стереотипов. (…) 38. Побуждать средства массовой информации освещать позитивные стороны жизни цыган и сбалансированно подавать соответствующие материалы, не допус- кая создания стереотипных представлений о рома и синти и нагнетания напря- женности между различными этническими группами. Организовывать в этих целях “круглые столы” с участием представителей средств массовой информации и рома и синти.

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B. Защита от преступлений на почве ненависти Маастрихт 2003 г. (Решения: Приложение к Решению No. 3/03: План действий по улучшению положения рома и синти в регионе ОБСЕ) III. Борьба с расизмом и дискриминацией (…) Законодательство и правоохранительная деятельность Рекомендуемые действия государств-участников: 9. Антидискриминационное законодательство должно предусматривать: (…) • применение более строгих мер наказания за преступления на расовой почве, совершаемые как частными лицами, так и государственными чиновниками; • равный доступ к эффективной средствам правовой защиты (судебным или административным процедурам, процедурам примирения или посредничес- тва). (…) 11. Создать в соответствующих случаях специализированные институты, обес- печивающие применение такого законодательства, а также национальные меха- низмы наблюдения за ходом его применения и регулярного представления об этом докладов в условиях транспарентности. Побуждать представителей рома и синти к участию в работе таких органов, которая должна быть доступной для общественности. (…) 16. Обеспечивать активное и эффективное расследование актов насилия в отно- шении рома и синти, особенно в случаях, когда имеются достаточные основания подозревать, что они совершены на расовой почве, и осуществлять судебное пре- следование виновных согласно национальному законодательству и при соблюде- нии соответствующих правозащитных норм. 17. Не допускать безнаказанности виновных в актах дискриминации или наси- лия, в частности, путем незамедлительного принятия полицией эффективных мер по расследованию и наказанию соответствующих лиц. 18. Облегчать рома и синти доступ к правосудию с помощью таких мер, как пра- вовая помощь и предоставление информации на цыганском языке.

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Полиция Рекомендуемые действия государств-участников: (…) 27. Разработать программы профессиональной подготовки, ориентированной на предотвращение чрезмерного применения силы, более глубокое понимание и ува- жение прав человека. 28. Разработать политику, призванную: 1) улучшить отношения между общинами рома и синти и полицией, с тем, чтобы предупредить жестокое обращение и наси- лие в отношении рома и синти со стороны полиции; и 2) повысить веру в поли- цию и доверие к ней со стороны рома и синти. 29. Разработать политику и процедуры, обеспечивающие принятие полицией эффективных мер в ответ на насилие на расовой почве в отношении рома и синти. 30. Произвести — на основе консультаций с национальной полицией, НПО и представителями общин рома и синти — оценку расхождений между существу- ющей национальной практикой и международными нормами в области полицей- ской деятельности. 31. Разработать — там, где это необходимо, и в тесном партнерстве с междуна- родными организациями и цыганскими НПО — директивные установки, кодексы поведения, практические руководства и программы подготовки кадров.

4.2.6 Кризисные и послекризисные ситуации Маастрихт 2003 г. (Решения: Приложение к Решению No. 3/03: План действий по улучшению положения рома и синти в регионе ОБСЕ) VII. Рома и синти в кризисных и послекризисных ситуациях (…) Рекомендуемые действия государств-участников: 107. Консультироваться с цыганским населением при определении кризисных ситуаций в целях облегчения надлежащих процедур и выявления конкретных гео- графических районов, из которых имеет место отток беженцев и внутренне пере- мещенных лиц, а также в целях учета специфического положения рома и синти. 108. Обеспечивать, чтобы цыганское население, подвергшееся вынужденному перемещению (беженцы и ВПЛ), должным образом регистрировалось и чтобы ему выдавались соответствующие документы. 109. Государства-участники должны обеспечивать наличие программ, облегчаю- щих беженцам и ВПЛ из числа рома и синти обоснованный выбор долгосрочного решения по поводу своего будущего, включая осуществление их права на безо- пасное, достойное и устойчивое возвращение. Такие программы должны обеспе- чивать предоставление конкретной информации по каждому вопросу, имеющему

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значение для беженцев и ВПЛ, которая должна предлагаться на соответствующих языках. 110. Обеспечить, чтобы обращение с беженцами из числа рома и синти отвечало соответствующим международным нормам и стандартам защиты и носило недис- криминационный характер. 111. Использовать функции БДИПЧ по предотвращению конфликтов и выявле- нию областей, требующих вмешательства на раннем этапе, опираясь при этом на опыт ВКНМ ОБСЕ. 112. Уделять особое внимание потребностям цыганских женщин и детей в кри- зисных и послекризисных ситуациях, в первую очередь предоставляя им доступ к медицинскому обслуживанию, возможность получения жилья и школьного обу- чения.

4.3 Коренное население

Хельсинки 1992 г. (Решения: VI. Человеческое измерение) Коренное население Государства-участники, (29) Отмечая, что лица, принадлежащие к коренному населению, могут сталки- ваться с особыми проблемами при осуществлении своих прав, соглашаются, что их обязательства по СБСЕ в отношении прав человека и основных свобод в пол- ной мере и без дискриминации применимы к таким лицам.

4.4 Беженцы, перемещенные и возвращающиеся лица, лица без гражданства

См. также: á II. 3.1.11: Свобода передвижения, контактов между людьми и право на воссоединение семьи á II. 3.1.13: Право на гражданство á II. 4.2: Рома и синти á II. 7: Обязательства, относящиеся к международному гуманитарному праву

Вена 1989 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) (22) [Государства-участники] (…) будут разрешать всем беженцам, которые того пожелают, возвращаться в безопасности домой. Хельсинки 1992 г. (Декларация встречи на высшем уровне) 14. В период конфликтов наибольшей угрозе подвергается удовлетворение эле- ментарных потребностей человека. (…) Мы признаем, что проблемы беженцев, возникшие в результате этих конфликтов, требуют от всех нам сотрудничества. Мы заявляем о своей поддержке тех стран, на которые легла основная тяжесть проблемы беженцев, возникшей в результате этих конфликтов, и выражаем соли-

Обязательства ОБСЕ в области человеческого измерения 189 Обязательства, относящиеся к правам человека, уделяющие особое внимание отдельным группам Ч АС Т Ь I I

дарность с этими странами. В этой связи мы признаем необходимость сотрудни- чества и согласованных действий. Хельсинки 1992 г. (Решения: VI. Человеческое измерение) Беженцы и перемещенные лица Государства-участники (39) выражают свою озабоченность в отношении проблемы беженщев и переме- щенных лиц. (40) Указывают на важность предотвращения ситуаций, которые могут привести к массовым потокам беженщев и перемещенных лиц, и подчеркивают необходи- мость выявления и рассмотрения коренных причин перемещения и вынужден- ной миграции населения. (41) Признают необходимость в международном сотрудничестве, направленном на решение проблем, связанных с массовыми потоками беженцев и перемещен- ных лиц. (42) Признают, что случаи перемещения часто являются результатом наруше- ний обязательств по СБСЕ, в том числе обязательств, связанных с человеческим измерением. (43) Вновь подтверждают важность существующих международных стандартов и документов, касающихся защиты беженцев и оказания им помощи, и рассмотрят вопрос о присоединении к Конвенции о статусе беженцев и к Протоколу, если они еще не сделали этого. (44) Признают важное значение деятельности Верховного комиссара Организа- ции Объединенных Наций по делам беженцев и Международного Комитета Крас- ного Креста, а также неправительственных организаций, занимающихся оказа- нием помощи, для обеспечения защиты беженцев и перемещенных лиц и оказа- ния им содействия. (45) Приветствуют и поддерживают нацеленные на поиск долговременных реше- ний односторонние, двусторонние и многосторонние усилия по обеспечению защиты беженцев и перемещенных лиц и оказанию им помощи. Стокгольм 1992 г. (Решения: 2. СБСЕ как система общих ценностей) Обостряющаяся проблема беженцев и перемещенных лиц является вопро- сом, вызывающим серьезную озабоченность всех государств-участников, осо- бенно удовлетворение основных человеческих потребностей. Министры выра- зили сожаление в связи с тяготами гражданского населения, наиболее пострадав- шего в результате подобных конфликтов, и обратились с призывом ко всем госу- дарствам-участникам внести вклад в согласованные усилия по разделению этого общего бремени. Правительства всех стран несут ответственность друг перед другом за свое поведение в отношении своих граждан и своих соседей. Отде-

190 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I I Беженцы, перемещенные и возвращающиеся лица, лица без гражданства

льные лица должны нести личную ответственность за военные преступления и действия в нарушение международного гуманитарного права. Будапешт 1994 г. (Решения: VIII. Человеческое измерение) 32. Государства-участники выражают свою озабоченность в связи с происходя- щей в регионе СБСЕ массовой миграцией, в том числе с появлением миллионов беженцев и перемещенных лиц главным образом в результате войн, вооруженных конфликтов, социальной вражды и грубых нарушений прав человека. (…) они пос- тановляют расширить сотрудничество в этой области с соответствующими меж- дународными организациями. (…) Лиссабон 1996 г. (Декларация встречи на высшем уровне) 9. (…) Среди острых проблем человеческого измерения угрозой для стабильности в регионе ОБСЕ остаются непрекращающиеся нарушения прав человека, в част- ности в форме вынужденной миграции (…) Мы твердо намерены продолжать уси- лия по решению этих проблем. 10. Памятуя о трагедиях, постигших за последнее время беженцев в различных частях региона ОБСЕ, и принимая во внимание проблему насильственной миг- рации, мы вновь заявляем о своем осуждении любой политики “этнических чис- ток” или массового изгнания населения и обязуемся воздерживаться от подобной политики. Наши государства будут создавать условия для безопасного и достой- ного возвращения беженцев и внутренне перемещенных лиц в соответствии с международными нормами. Следует добиваться их социальной реинтеграции в местах первоначального проживания на недискриминационной основе. (…) Стамбул 1999 г. (Декларация встречи на высшем уровне) 26. (…) Мы твердо намерены в полном объеме надежно обеспечить лицам, прина- длежащим к меньшинствам, право голоса и создать условия для осуществления беженцами права на участие в выборах, проводимых в стране их первоначального проживания. (…) Стамбул 1999 г. (Хартия европейской безопасности: III. Наш общий ответ) 19. (…) Мы вновь подтверждаем, что каждый человек имеет право на гражданство и что никто не может быть произвольно лишен своего гражданства. Мы обязу- емся продолжать наши усилия с целью обеспечить, чтобы каждый смог восполь- зоваться этим правом. Мы также твердо намерены сделать более надежной меж- дународную защиту лиц без гражданства. (…) 22. Мы отвергаем любую политику этнических чисток или массового изгнания. Мы вновь подтверждаем свою приверженность уважению права на поиск убе- жища и обеспечению международной защиты беженцев в соответствии с Конвен- цией о статусе беженцев 1951 года и Протоколом к ней 1967 года, а также содейс- твию добровольному, достойному и безопасному возвращению беженцев и внут-

Обязательства ОБСЕ в области человеческого измерения 191 Обязательства, относящиеся к правам человека, уделяющие особое внимание отдельным группам Ч АС Т Ь I I

ренне перемещенных лиц. Мы будем добиваться социальной реинтеграции на недискриминационной основе беженцев и внутренне перемещенных лиц в мес- тах их первоначального проживания. С целью усиления защиты гражданских лиц во время конфликта мы будем вести поиск путей более активного применения международного гуманитарного права. Бухарест 2001 г. (Приложение к Решению No. 1: Борьба c терроризмом: Бухарест- ский план действий по борьбе с терроризмом) 15. Решение проблемы затянувшегося перемещения. Государства-участники/ БДИПЧ/ВКНМ/Представитель по вопросам свободы средств массовой инфор- мации: будут изучать возможности укрепления потенциала ОБСЕ по поиску надежных решений, поддержке других соответствующих организаций, в первую очередь Управления Верховного комиссара ООН по делам беженцев, и тесному сотрудничеству с ними; будут внимательно следить за ситуациями, связанными с затянувшимся перемещением. Маастрихт 2003 г. (Решения: Решение No. 4/03: Толерантность и недискримина- ция) Совет министров, (…) 12. Обязуется в этой связи, при соблюдении национального законодательства и международных обязательств, вести борьбу с дискриминацией лиц, ищущих убе- жища, а также беженцев, там, где она существует, и призывает БДИПЧ укреплять свою деятельность в этой области; 13. Принимает во внимание Руководящие принципы ООН касательно внутрен- него перемещения как полезную основу для работы ОБСЕ и усилий государств- участников по решению проблем внутреннего перемещения; София 2004 г. (Решения: Приложение к Решению No. 14/04: План действий ОБСЕ 2004 года по поддержке гендерного равенства) IV. Поддержка гендерного равенства в государствах-участниках (…) в соответствии с рекомендациями, изложенными в Руководящих принципах по вопросам международной защиты, касающимся преследования по гендерному признаку, в контексте статьи 1А (2) Конвенции 1951 года о статусе беженцев и/или Протокола 1967 года к ней, касающегося статуса беженцев, ввести в государствах, которые еще не сделали этого, процедурную практику, обеспечивающую надле- жащее рассмотрение ходатайств женщин в процессе определения статуса бежен- цев, а также уделение надлежащего внимания всему спектру жалоб на преследо- вания на гендерной почве; (…)

192 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I I Рабочие-мигранты

4.5 Рабочие-мигранты

См. также: á II. 3.1.11: Свобода передвижения, контактов между людьми и право на воссоединение семьи

Хельсинки 1975 г. (Сотрудничество в области экономики, науки и техники и окру- жающей среды) 6. Сотрудничество в других секторах (…) Экономические и социальные аспекты мигрирующей рабочей силы Государства-участники, принимая во внимание, что перемещение рабочих-мигрантов в Европе приняло большие размеры и что оно является важным экономическим, социальным и гуманитарным фактором как в принимающих странах, так и в странах происхож- дения, признавая, что миграция рабочих порождает также ряд экономических, социаль- ных, гуманитарных и иных проблем как в принимающих странах, так и в странах происхождения, учитывая надлежащим образом деятельность в этой области компетентных меж- дународных организаций, в частности Международной организации труда, считают, что проблемы, возникающие в двустороннем плане в связи с миграцией рабочих в Европе, а также между государствами-участниками, должны рассмат- риваться непосредственно заинтересованными сторонами с тем, чтобы решать эти проблемы в их обоюдных интересах, в свете стремления каждого заинтере- сованного государства учитывать должным образом потребности, вызываемые его социально-экономическим положением, принимая во внимание обязанность каждого государства действовать в соответствии с двусторонними и многосто- ронними соглашениями, стороной которых оно является, и имея в виду следую- щие цели: • поощрять усилия стран происхождения, направленные на расширение возмож- ностей занятости для своих граждан на своей территории, в частности путем развития экономического сотрудничества, отвечающего этой цели и приемле- мого для заинтересованных стран происхождения и принимающих стран; • обеспечивать, путем сотрудничества между принимающей страной и страной происхождения, создание условий, в которых могло бы происходить упорядо- ченное перемещене рабочих, ограждая при этом их личное и социальное благо- состояние, и организовывать в соответствующих случаях набор и элементарную языковую и профессиональную подготовку рабочих-мигрантов;

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• обеспечивать равноправие между рабочими-мигрантами и гражданами прини- мающих стран в том, что касается условий найма и труда, а также социального обеспечения, и следить за тем, чтобы для рабочих-мигрантов создавались удов- летворительные условия жизни, особенно в отношении жилья; • следить, насколько это возможно, за тем, чтобы рабочие-мигранты пользова- лись теми же возможностями, что и граждане принимающей страны, в отноше- нии получения подходящей работы в случае безработицы; • относиться благожелательно к тому, чтобы рабочие-мигранты получали профес- сиональную подготовку и, насколько это возможно, бесплатно обучались языку принимающей страны по месту работы; • закрепить право рабочих-мигрантов по возможности регулярно получать информацию на своем родном языке как о стране происхождения, так и о при- нимающей стране; • обеспечить детям рабочих-мигрантов, проживающих в принимающей стране, доступ к обычному для этой страны образованию на тех же условиях, что и для детей этой страны, и позволить, кроме того, преподавание родного языка, наци- ональной культуры, истории и географии; • иметь в виду, что рабочие-мигранты, особенно получившие квалификацию, воз- вращаясь в свою страну по прошествии некоторого времени, могут способство- вать восполнению нехватки квалифицированной рабочей силы в стране проис- хождения; • облегчать, насколько это возможно, воссоединение семей рабочих-мигрантов; • относиться благожелательно к усилиям стран происхождения по привлечению сбережений рабочих-мигрантов с тем, чтобы в рамках их экономического разви- тия расширить соответствующие возможности для занятости, способствуя тем самым реинтеграции этих рабочих по их возвращении. Мадрид 1983 г. (Сотрудничество в области экономики, науки и техники и окружа- ющей среды) Государства-участники, в контексте положений Заключительного акта, касаю- щихся мигрирующей рабочей силы в Европе, отмечают, что развитие мировой экономики в последнее время затронуло положение рабочих-мигрантов. В этой связи государства-участники выражают пожелание, чтобы принимающие страны и страны происхождения, руководствуясь духом взаимной заинтересованности и сотрудничества, интенсифицировали свои контакты, имея в виду дальнейшее улучшение общего положения рабочих-мигрантов и их семей, в частности в том, что касается защиты прав человека, включая их экономические, социальные и культурные права, принимая особенно во внимание специальные проблемы миг- рантов второго поколения. Они будут также стремиться обеспечивать или содейс- твовать — в тех случаях, когда существуют разумные потребности, — соответс- твующему преподаванию языка и культуры страны происхождения.

194 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I I Рабочие-мигранты

Государства-участники рекомендуют, чтобы, наряду с другими мерами по облегче- нию социальной и экономической реинтеграции возвращающихся рабочих-миг- рантов, была обеспечена соответствующими законодательными средствами или взаимными соглашениями выплата пенсий, полагающихся или установленных в соответствии с системами социального обеспечения, к которым такие рабочие допущены в стране пребывания. Вена 1989 г. (Сотрудничество в области экономики, науки и техники и окружаю- щей среды) (40) Государства-участники подчеркивают необходимость эффективного осу- ществления положений Заключительного акта и мадридского Итогового доку- мента, касающихся рабочих-мигрантов и их семей в Европе. Они просят прини- мающие страны и страны происхождения предпринять усилия с тем, чтобы улуч- шать в дальнейшем экономические, социальные, культурные и другие условия жизни рабочих-мигрантов и их семей, законно проживающих в принимающих странах. Они рекомендуют, чтобы принимающие страны и страны происхожде- ния содействовали двустороннему сотрудничеству между ними в соответству- ющих областях с целью способствовать реинтеграции рабочих-мигрантов и их семей, возвращающихся в страну происхождения. (41) Государства-участники (…) будут благожелательно рассматривать ходатайс- тва о воссоединении семей, а также о семейных контактах и поездках рабочих- мигрантов из других государств-участников, законно проживающих в принима- ющих странах. (42) Государства-участники будут обеспечивать, чтобы рабочие-мигранты из дру- гих государств-участников и их семьи могли свободно пользоваться благами своей национальной культуры, сохранять ее и иметь доступ к культуре принима- ющей страны. (43) С целью обеспечения эффективного равенства возможностей между детьми рабочих-мигрантов и детьми своих граждан в отношении доступа ко всем видам и уровням образования, государства-участники подтверждают свою готовность принять меры, необходимые для более полного использования и улучшения воз- можностей получения образования. Кроме того, они будут поощрять или облег- чать там, где имеется разумная потребность, дополнительное преподавание для детей рабочих-мигрантов на их родных языках. (44) Государства-участники признают, что вопросы рабочих-мигрантов имеют свое человеческое измерение. Копенгаген 1990 г. (22) Государства-участники подтверждают, что защита и поощрение прав рабо- чих-мигрантов имеют свое человеческое измерение. В этом контексте они

Обязательства ОБСЕ в области человеческого измерения 195 Обязательства, относящиеся к правам человека, уделяющие особое внимание отдельным группам Ч АС Т Ь I I

(22.1) соглашаются, что защита и поощрение прав рабочих-мигрантов является задачей всех государств-участников и как таковые они должны рассматриваться в рамках процесса СБСЕ; (22.2) подтверждают свое обязательство полностью обеспечивать в своем внут- реннем законодательстве права рабочих-мигрантов, предусмотренные междуна- родными соглашениями, участниками которых они являются; (22.3) считают, что в будущих международных инструментах, касающихся прав рабочих-мигрантов, они должны учитывать тот факт, что данный вопрос важен для них всех; (…) Париж 1990 г. (Новая эра демократии, мира и единства) Мы признаем, что проблемы рабочих-мигрантов и их семей, законно прожива- ющих в принимающих странах, имеют экономические, культурные и социаль- ные аспекты, а также свое человеческое измерение. Мы вновь подтверждаем, что защита их прав и содействие им, а также выполнение соответствующих междуна- родных обязательств является нашим общим делом. Москва 1991 г. (38) Государства-участники признают необходимость обеспечить уважение прав трудящихся-мигрантов и их семей, законно проживающих в государствах-учас- тниках, и особо отметить их право на свободное проявление их национальных, культурных, религиозных и языковых особенностей. Осуществление таких прав может подлежать лишь таким ограничениям, которые установлены законом и соответствуют международным стандартам. (38.1) Они осуждают все акты дискриминации по признаку расы, цвета кожи и этнического происхождения, нетерпимости и ксенофобии в отношении трудя- щихся-мигрантов. Они будут принимать в соответствии с национальным законо- дательством и международными обязательствами эффективные меры для поощ- рения терпимости, понимания, равенства возможностей и уважения основных прав человека трудящихся-мигрантов; и примут, если они еще не сделали этого, меры по запрещению актов, представляющих собой подстрекательство к наси- лию, основанному на национальной, расовой, этнической или религиозной диск- риминации, враждебности или ненависти. (38.2) Они примут соответствующие меры, которые бы позволили трудящимся- мигрантам принимать участие в общественной жизни государств-участников. (38.3) Они отмечают, что вопросы, связанные с человеческим измерением трудя- щихся-мигрантов, проживающих на их территории, как и любые другие вопросы, относящиеся к человеческому измерению, могли бы быть подняты в рамках меха- низма человеческого измерения.

196 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I I Рабочие-мигранты

Хельсинки 1992 г. (Решения: VI. Человеческое измерение) Рабочие-мигранты Государства-участники (36) Вновь заявляют, что права человека и основные свободы являются всеоб- щими и что рабочие-мигранты также пользуются этими правами и свободами, независимо от места их проживания, а также подчеркивают важность выпол- нения всех обязательств по СБСЕ в отношении рабочих-мигрантов и их семей, законно проживающих на территории государств-участников. (37) Будут способствовать созданию условий для развития более гармоничных отношений между рабочими-мигрантами и обществом государства-участника, в котором они законно проживают. С этой целью они будут, в частности, прини- мать меры, направленные на то, чтобы способствовать освоению рабочими-миг- рантами и их семьями языков и ознакомлению с общественной жизнью соот- ветствующего государства-участника, в котором они законно проживают, с тем, чтобы предоставить им возможность участвовать в жизни общества принимаю- щей страны. (38) Будут в соответствии со своей внутренней политикой, своими внутренними законами и международными обязательствами стремиться в соответствующих случаях к созданию для законно проживающих и работающих рабочих-мигран- тов условий, способствующих обеспечению равных возможностей в том, что касается условий труда, образования, социального обеспечения и здравоохране- ния, обеспечения жильем, возможности участия в профсоюзной деятельности, а также культурных прав. Будапешт 1994 г. (Решения: VIII. Человеческое измерение) 29. Они постановили, что должны приниматься надлежащие меры для более эффективного предотвращения расистских вылазок и других насильственных проявлений нетерпимости в отношении рабочих-мигрантов и их семей. (…) 31. Они будут продолжать содействовать социальной интеграции рабочих-миг- рантов в тех странах, где они законно проживают. Они признают, что успех про- цесса интеграции также зависит от его активного осуществления самими миг- рантами, и, соответственно, приняли решение поощрять их в этом отношении. Маастрихт 2003 г. (Решения: Решение No. 4/03: Толерантность и недискримина- ция) Совет министров, (…) 11. Принимает обязательство бороться с дискриминацией против рабочих-миг- рантов. (…)

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София 2004 г. (Решения: Приложение к Решению No. 12/04: Толерантность и недискриминация; Решение Постоянного совета No. 621: Толерантность и борьба с расизмом, ксенофобией и дискриминацией) 1. Государства-участники обязуются: (…) • принимать в соответствии со своим внутренним законодательством и междуна- родными обязательствами меры против дискриминации, нетерпимости и ксе- нофобии в отношении мигрантов и рабочих-мигрантов; • рассмотреть вопрос о принятии мер по повышению осведомленности обще- ственности относительно обогащающего вклада мигрантов и рабочих-мигран- тов в жизнь общества; (…)

4.6 Лица с ограниченными возможностями

Москва 1991 г. (41) Государства-участники принимают решение (41.1) обеспечивать защиту прав человека лиц, имеющих инвалидность; (41.2) принимать меры по обеспечению таким лицам равных возможностей в пол- ном объеме участвовать в жизни общества; (41.3) содействовать соответствующему участию таких лиц в принятии решений в областях, имеющих к ним отношение; (41.4) развивать услуги и содействовать подготовке социальных работников по профессиональной и социальной реабилитации лиц, имеющих инвалидность; (41.5) создавать благоприятные условия, обеспечивающие лицам, имеющим инва- лидность, доступ к общественным зданиям и видам обслуживания, жилым пост- ройкам, транспорту, культурной жизни и отдыху.

198 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I I Дети

4.7 Дети

См. также: á II. 3.1.11: Свобода передвижения, контактов между людьми и право на воссоединение семьи á II. 3.2.4: Право на образование á II. 4.2: Рома и синти á II. 4.4: Беженцы, перемещенные лица и возвращающиеся лица, лица без гражданства á II. 4.5: Рабочие-мигранты á II. 6.2: Предотвращение торговли людьми

Копенгаген 1990 г. (13) Государства-участники принимают решение уделять особое внимание при- знанию прав ребенка, его гражданских прав и личных свобод, его экономичес- ких, социальных и культурных прав и его права на особую защиту от всех видов насилия и эксплуатации. Они рассмотрят вопрос о присоединении, если они еще не сделали этого, к Конвенции о правах ребенка, которая была открыта для под- писания государствами 26 января 1990 года. Они признают в своем внутреннем законодательстве права ребенка, зафиксированные в международных соглаше- ниях, сторонами которых они являются. Стамбул 1999 г. (Декларация встречи на высшем уровне) 28. В год десятилетия с момента принятия Конвенции о правах ребенка и претво- рения в жизнь обязательств по ОБСЕ, зафиксированных в Документе Копенга- генского совещания, мы обязуемся активно отстаивать права и интересы детей, особенно в условиях конфликтов и постконфликтных условиях. В работе ОБСЕ мы будем регулярно уделять внимание вопросу о правах детей (…) Мы будем уде- лять особое внимание вопросам физического и психологического благополучия детей, вовлеченных в вооруженный конфликт или затронутых им. Стамбул 1999 г. (Хартия европейской безопасности: III. Наш общий ответ) 24. Мы будем принимать меры по (…) прекращению насилия в отношении (…) детей, а также сексуальной эксплуатации и всех форм торговли людьми. Для пре- дотвращения подобных преступлений мы будем, среди прочего, содействовать принятию или укреплению законодательства для привлечения виновных в таких действиях к ответственности и усиления защиты потерпевших. Мы будем также совершенствовать и осуществлять меры по обеспечению прав и интересов детей в вооруженных конфликтах и постконфликтных ситуациях, включая детей-бежен- цев и детей, перемещенных внутри государства. Мы будем изучать пути недопу- щения принудительного или обязательного рекрутирования для использования в вооруженных конфликтах лиц младше 18-летнего возраста.

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4.8 Военнослужащие

Будапешт 1994 г. (Решения: IV. Кодекс поведения, касающийся военно-полити- ческих аспектов безопасности) 27. Каждое государство-участник будет обеспечивать, чтобы набор или призыв личного состава на службу в его военных и военизированных силах и силах безо- пасности осуществлялся в соответствии с его правовыми и иными обязательс- твами в отношении прав человека и основных свобод. 28. Государства-участники будут отражать в своих законах или других соответс- твующих документах права и обязанности личного состава вооруженных сил. Они рассмотрят вопрос о введении практики освобождения от военной службы или прохождения альтернативной службы. (…) 32. Каждое государство-участник будет обеспечивать, чтобы личный состав воен- ных и военизированных сил и сил безопасности мог пользоваться правами чело- века и основными свободами и осуществлять их, как они отражены в документах СБСЕ и международном праве, согласно соответствующим конституционным и правовым положениям и требованиям службы. 33. Каждое государство-участник будет обеспечивать принятие соответствующих административно правовых процедур для защиты прав личного состава всех его сил.

4.9 Лица, лишенные свободы

См. также: á II. 2.4: Верховенство закона á II. 3.1.4: Право не подвергаться произвольному аресту и лишению свободы

Вена 1989 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) Государства-участники будут: (…) (23.2) обеспечивать, чтобы со всеми лицами, содержащимися под стражей или в заключении, обращались гуманно и с уважением достоинства, присущего челове- ческой личности; (23.3) соблюдать принятые ООН минимальные стандартные правила обращения с заключенными, а также принятый ООН Кодекс поведения должностных лиц по поддержанию правопорядка; Копенгаген 1990 г. (15) Государства-участники будут действовать таким образом, чтобы облег- чать передачу осужденных лиц и побуждать те государства-участники, которые

200 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I I Лица, лишенные свободы

не являются сторонами Конвенции о передаче осужденных лиц, подписанной в Страсбурге 21 ноября 1983 года, рассмотреть вопрос о присоединении к этой Кон- венции. Москва 1991 г. (23) Государства-участники будут обращаться со всеми лишенными свободы лицами гуманно и с уважением достоинства, присущего человеческой личности, и будут соблюдать международно признанные стандарты, относящиеся к отправ- лению правосудия и правам человека задержанных лиц. (…) (23.1) Государства-участники будут обеспечивать, чтобы: (…) (vi) любое арестованное или задерженное лицо имело право без неоправданных задержек уведомить или просить компетентный орган уведомить соответствую- щих лиц по его выбору о его аресте, задержании, тюремном заключении и месте нахождения; любые ограничения в осуществлении этого права будут устанавли- ваться законом и соответствовать международным стандартам; (vii) были приняты, если этого еще не сделано, эффективные меры по обеспече- нию того, чтобы содержание под стражей или заключение не использовалось пра- воохранительными органами в целях принуждения лица к признанию, самоого- вору или даче показаний против другого лица; (viii) продолжительность любого допроса и перерывов между допросами заноси- лась в протокол и удостоверялась в соответствии с национальным правом; (ix) задерженное лицо или его адвокат имели право заявить ходатайство или жалобу по поводу обращения с ним, в частности в случае пыток или другого жес- токого, бесчеловечного или унижающего достоинство обращения, в органы, ответственные за управление местом содержания под стражей, и в вышестоящие инстанции, а в случае необходимости — соответствующему органу, обладающему надзорными или иными полномочиями по исправлению положения; (х) такое ходатайство или жалоба оперативно рассматривались и без необосно- ванной задержки на них давался ответ; в случае отклонения ходатайства или жалобы или в случае неправомерной задержки заявитель будет иметь право обра- титься с ней в судебный или другой орган; ни задержанное или находящееся в заключении лицо, ни любой другой заявитель не должны пострадать в связи с обращением с ходатайством или жалобой; (…) (23.2) Государства-участники будут (i) стремиться принимать необходимые меры для улучшения условий, в которых находятся лица, содержащиеся под стражей или в заключении; (ii) обращать особое внимание на проблему альтернатив тюремному заключению.

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5.1 Положения о равенстве и недискриминации

Хельсинки 1975 г. (Вопросы, относящиеся к безопасности в Европе: 1. (a) Декла- рация принципов, которыми государства-участники будут руководствоваться во взаимных отношениях; Принцип VII) VII. Уважение прав человека и основных свобод, включая свободу мысли, совести, религии и убеждений Государства-участники будут уважать права человека и основные свободы (…) для всех, без различия расы, пола, языка и религии. Вена 1989 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) (…) [Государства-участники] будут: (13.7) обеспечивать в пределах своей территории каждому, подлежащему их юрис- дикции, права человека и основные свободы без какого бы то ни было различия, как то в отношении расы, цвета кожи, пола, языка, религии, политических или иных убеждений, национального или социального происхождения, имуществен- ного положения, рождения или иного обстоятельства; (13.8) обеспечивать, чтобы ни лицо, осуществляющее, выражающее намерение осуществить или стремящееся осуществить эти права и свободы, ни кто-либо из членов его семьи не были вследствие этого подвергнуты дискриминации в какой- либо форме; Копенгаген 1990 г. (5) [Государства-участники] торжественно заявляют, что к числу элементов спра- ведливости, которые существенно необходимы для полного выражения досто- инства, присущего человеческой личности, и равных и неотъемлемых прав всех людей относятся следующие:

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(…) (5.9) все люди равны перед законом и имеют право без какой бы то ни было дис- криминации на равную защиту со стороны закона. В этой связи закон запрещает любую дискриминацию и гарантирует всем лицам равную и эффективную защиту от дискриминации по какому бы то ни было признаку; (…) (25.3) меры, представляющие собой отступление от обязательств, будут строго ограничиваться рамками, которых требует острота положения; (25.4) такие меры не повлекут за собой дискриминации исключительно на основе расовой принадлежности, цвета кожи, пола, языка, религии, социального проис- хождения или принадлежности к меньшинству. (…) (31) Лица, принадлежащие к национальным меньшинствам, имеют право полно- стью и эффективно осуществлять свои права человека и основные свободы без какой-либо дискриминации и в условиях полного равенства перед законом. Государства-участники примут, в случае необходимости, специальные меры с целью гарантировать лицам, принадлежащим к национальным меньшинствам, полное равенство с другими гражданами в осуществлении прав человека и основ- ных свобод и пользовании ими.

5.2 Равноправие мужчин и женщин

Мадрид 1983 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) [Государства-участники] подчеркивают важность обеспечения равноправия мужчин и женщин; соответственно, они соглашаются принимать все необходи- мые меры для поощрения одинаково эффективного участия мужчин и женщин в политической, экономической, социальной и культурной жизни. Вена 1989 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) (15) Государства-участники подтверждают свою решимость обеспечивать мужчи- нам и женщинам равные права. Соответственно они будут принимать все необхо- димые меры, включая законодательные, в целях поощрения равно эффективного участия мужчин и женщин в политической, экономической, социальной и куль- турной жизни. Они рассмотрят возможность присоединения к Конвенции о лик- видации всех форм дискриминации в отношении женщин, если они этого еще не сделали. Москва 1991 г. (40) Государства-участники признают, что полное и подлинное равенство между мужчинами и женщинами является существенно важным элементом справед- ливого и демократического общества, основанного на верховенстве закона. Они

204 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I I Равноправие мужчин и женщин

признают, что целостное развитие общества и повышение благополучия всех его членов требуют равных возможностей для полного и равного участия мужчин и женщин. В этом контексте они будут (40.1) обеспечивать, чтобы все обязательства в рамках СБСЕ, относящиеся к защите и поощрению прав человека и основных свобод, применялись в полном объеме и без какой-либо дискриминации по признаку пола; (40.2) полностью соблюдать Конвенцию о ликвидации всех форм дискримина- ции в отношении женщин, если они являются ее участниками, а если они еще не стали таковыми, они рассмотрят вопрос о ратификации этой Конвенции или о присоединении к ней; государства, которые ратифицировали эту Конвенцию или присоединились к ней с оговорками, рассмотрят вопрос об их снятии; (40.3) эффективно осуществлять обязательства по международным договорам, сторонами которых они являются, и принимать надлежащие меры по осущест- влению Найробийских перспективных стратегий Организации Объединенных Наций в области улучшения положения женщин; (40.4) подтвердят, что их целью является достижение не только юридического, но и фактического равенства возможностей для мужчин и женщин, а также содейс- твие принятию эффективных мер в этом направлении; (40.5) создадут или укрепят соответствующий национальный механизм по улуч- шению положения женщин, с тем, чтобы обеспечить проведение оценки влияния программ и политики на их положение; (40.6) эффективно поощрять меры по обеспечению всех экономических возмож- ностей для женщин, включая отсутствие дискриминации в политике и практике найма, равный доступ к образованию и профессиональной подготовке и меры, облегчающие трудящимся женщинам и мужчинам совмещение работы и семей- ных обязанностей; и будут стремиться обеспечить, чтобы любая политика или программы, предусматривающие структурную перестройку, не имели для жен- щин дискриминационных последствий; (40.7) стремиться покончить со всеми формами насилия в отношении женщин и со всеми формами торговли женщинами и эксплуатации женской проституции, в том числе путем принятия соответствующих юридических запретов в отношении подобных действий и других соответствующих мер; (40.8) способствовать и содействовать равенству и самому широкому участию женщин во всех аспектах политической и общественной жизни и процессах при- нятия решений, а также в международном сотрудничестве в целом; (40.9) признавать жизненно важную роль, которую женщины и женские органи- зации играют в национальных и международных усилиях, направленных на раз- витие и расширение прав женщин, путем предоставления, в частности, прямых услуг, а также поддержки и содействия полноценному партнерству между прави-

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тельствами и указанными организациями с целью обеспечения большего равенс- тва женщин; (40.10) признавать ценный вклад женщин во все аспекты политической, культур- ной, общественной и экономической жизни и содействовать более широкому при- знанию этого вклада, в том числе в неформальном и неоплачиваемом секторах; (40.11) принимать меры с целью содействовать обеспечению свободного доступа к информации в отношении женщин и их прав согласно международному и внут- ригосударственному праву; (40.12) разрабатывать совместимую с их конституционными системами политику в области образования, содействовать участию женщин во всех сферах обучения и трудовой деятельности, включая нетрадиционные области, и способствовать и содействовать большему пониманию вопросов, имеющих отношение к равенству мужчин и женщин; (40.13) обеспечивать сбор и анализ данных, с тем, чтобы надлежащим обра- зом оценить, взять под контроль и улучшить положение женщин; эти данные не должны содержать никакой информации личного характера. Стамбул 1999 г. (Хартия европейской безопасности: III. Наш общий ответ) 23. Полное и равное осуществление женщинами своих прав человека имеет важ- нейшее значение для укрепления мира, процветания и демократии в регионе ОБСЕ. Мы обязуемся сделать обеспечение равенства между мужчинами и жен- щинами неотъемлемой частью своей политики как на уровне наших государств, так и в рамках Организации. 24. Мы будем принимать меры по ликвидации всех форм дискриминации жен- щин и прекращению насилия в отношении женщин и детей, а также сексуальной эксплуатации и всех форм торговли людьми. (…) Маастрихт 2003 г. (Решения: Решение No. 4/03: Толерантность и недискримина- ция) Совет министров, (…) 2. Постановляет наращивать усилия, предпринимаемые для расширения участия и повышения роли женщин в содействии демократизации и экономическому раз- витию и рассматривать там, где это применимо, вопрос об учете в государствен- ной политике положений Плана действий ОБСЕ по гендерным вопросам. Пос- тановляет также наращивать свои усилия по достижению в ОБСЕ гендерного баланса на всех уровнях, полностью принимая в связи с этим во внимание также принцип найма на работу сотрудников из всех государств-участников на спра- ведливой основе. (…)

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София 2004 г. (Решения: Решение No. 14/04: План действий ОБСЕ 2004 года по поддержке гендерного равенства) Совет министров, (…) признавая, что равноправие женщин и мужчин и защита их прав человека явля- ются важнейшим условием обеспечения мира, устойчивой демократии, эконо- мического развития, а следовательно — безопасности и стабильности в регионе ОБСЕ, (…) сознавая необходимость надлежащим образом учитывать гендерную проблема- тику в мероприятиях, проводимых под эгидой ОБСЕ, а также то, что государс- твам-участникам надлежит принять все необходимые меры, способствующие повышению осведомленности о гендерной проблематике и обеспечению равно- правия и полноправного участия женщин и мужчин в жизни общества, в инте- ресах более широкого практического обеспечения гендерного равенства и учета гендерной проблематики в регионе ОБСЕ в качестве одного из важнейших усло- вий всеобъемлющей безопасности, (…) постановляет одобрить План действий 2004 года по поддержке гендерного равенства, принятый Решением No. 638 Постоянного совета от 2 декабря 2004 года и изложенный в Приложении к настоящему Решению. София 2004 г. (Решения: Приложение к Решению No. 14/04: План действий ОБСЕ 2004 года по поддержке гендерного равенства) (…) 3. Эффективный учет гендерной проблематики* во имя достижения равнопра- вия мужчин и женщин имеет важное значение для полновесного задействова- ния человеческого капитала в регионе ОБСЕ. Гендерное равенство способствует обеспечению всеобъемлющей безопасности — той цели, на достижение кото- рой направлены усилия ОБСЕ во всех трех измерениях. Систематический учет гендерной проблематики — один из способов достижения этой цели. Соответс- твенно, эта проблематика должна приниматься во внимание во всех меропри- ятиях, проектах и программах Организации, с тем, чтобы добиться гендерного равенства в деятельности самой Организации, равно как и в государствах-учас-

* "Учет гендерной проблематики представляет собой процесс оценки возникающих для женщин и муж- чин последствий любых планируемых мер, включая законодательство, политику или программы, во всех областях и на всех уровнях. Речь идет о стратегии, благодаря которой проблемы, встающие перед женщинами и мужчинами, и накопленный ими опыт должны стать одним из неотъемлемых направле- ний деятельности в процессе разработки, осуществления, контроля и оценки политики и программ во всех сферах политической, экономической и общественной жизни, с тем, чтобы и женщины, и мужчины в равной степени пользовались плодами таких усилий, и для неравенства не оставалось места. Конечная цель состоит в обеспечении равенства между женщинами и мужчинами". См. Официальные отчеты Ге- неральной ассамблеи, пятьдесят вторая сессия, дополнение No. 3 (А/52/3/Rev.1), глава IV, пункт 4.

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тниках. Эти государства, Действующего председателя, Генерального секретаря и руководителей институтов и миссий объединяет ответственность за утвержде- ние равноправия между женщинами и мужчинами в качестве неотъемлемого эле- мента политики и практики ОБСЕ. Проводя такую работу, следует иметь ввиду, что благоприятные последствия претворения в жизнь гендерного равенства в любом регионе и на любом уровне в обществе будут ощутимы как для женщин, так и для мужчин. (…) 8. Учет гендерной проблематики предполагает последовательное и системати- ческое отражение гендерных аспектов (…) на основе подхода, охватывающего все измерения, а также адекватные механизмы мониторинга и рассмотрения. (…) IV. Поддержка гендерного равенства в государствах-участниках 41. Государства-участники индивидуально и коллективно несут основную ответс- твенность и подотчетны своим гражданам в том, что касается выполнения их обязательств относительно равенства прав и равных возможностей для женщин и мужчин. Они обязались сделать равенство между женщинами и мужчинами неотъемлемой частью политики как на государственном уровне, так и в рамках Организации. Они обеспечат всемерное использование соответствующих фору- мов ОБСЕ для обзора выполнения принятых в ОБСЕ обязательств, касающихся равенства между женщинами и мужчинами. 42. Соответственно, государствам-участникам рекомендуется: • обеспечить разработку Организацией политики, эффективно способствующей гендерному равенству, а также учет гендерных аспектов в новых предложениях и инициативах; • создать или укрепить существующие механизмы для обеспечения гендерного равенства, в том числе путем предоставления доступа к услугам непредвзятого и независимого лица или органа — такого, как омбудсмен/комиссар по правам человека — в целях рассмотрения вопросов о дискриминации отдельных граж- дан на гендерной почве; • соблюдать и в полном объеме воплощать в жизнь принятые ими международ- ные нормы и обязательства, касающиеся равенства, недопущения дискримина- ции, а также прав женщин и девочек; • соблюдать Конвенцию о ликвидации всех форм дискриминации в отношении женщин (КЛДЖ), если они являются ее сторонами, либо рассмотреть вопрос о ратификации этой конвенции или присоединении к ней, если они еще не сде- лали этого. Государства, ратифицировавшие данную конвенцию или присоеди- нившиеся к ней с оговорками, рассмотрят возможность снятия этих оговорок. Государствам, являющимся сторонами КЛДЖ, предлагается также рассмотреть

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вопрос о ратификации Факультативного протокола к Конвенции о ликвидации всех форм дискриминации в отношении женщин; • если они являются сторонами Конвенции о ликвидации всех форм дискрими- нации в отношении женщин (КЛДЖ), Международного пакта о гражданских и политических правах (МПГПР) и/или Международного пакта об экономичес- ких, социальных и культурных правах (МПЭСКП), регулярно и своевременно представлять отчеты соответствующим органам и привлекать к подготовке своих отчетов женские организации; • предпринимать, где это необходимо, дальнейшие действия по обеспечению своим гражданам безопасных условий жизни и права на равную защиту в соот- ветствии с законом (…) (…) • опираясь на опыт ОБСЕ, разработать политику и стратегии обеспечения ген- дерного равенства во всех измерениях и включить в число мер по осуществле- нию такой политики, среди прочего, применение механизмов гендерного ана- лиза и мониторинга для оценки эффективности политики и стратегий в гендер- ной области в интересах выявления и устранения факторов, препятствующих их полному осуществлению.

5.3 Борьба с действиями, мотивированными предубеждениями, нетерпимостью и ненавистью

5.3.1 Общие положения Вена 1989 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) (16) (…) государства-участники будут, среди прочего: (16.1) принимать эффективные меры по предотвращению и ликвидации дискри- минации лиц или объединений на почве религии или убеждений в отношении признания, осуществления и пользования правами человека и основными свобо- дами во всех областях гражданской, политической, экономической, социальной и культурной жизни и по обеспечению действительного равенства между верую- щими и неверующими; Копенгаген 1990 г. (40) Государства-участники четко и безоговорочно осуждают тоталитаризм, расо- вую и этническую ненависть, антисемитизм, ксенофобию и дискриминацию про- тив кого бы то ни было, а также преследование по религиозным и идеологическим мотивам. В этом контексте они также признают особые проблемы роман (цыган). Они заявляют о своем твердом намерении активизировать усилия по борьбе с этими явлениями во всех их формах и поэтому (…)

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(40.2) возьмут на себя обязательство принять надлежащие и соответствующие меры для защиты лиц или групп, которые могут подвергаться угрозам или актам дискриминации, враждебности или насилия в результате их расовой, этнической, культурной, языковой или религиозной самобытности, и для защиты их собс- твенности. Хельсинки 1992 г. (Декларация встречи на высшем уровне) 12. (…) мы отвергаем расовую, этническую и религиозную дискриминацию в любой форме. Свободе и терпимому отношению необходимо учиться, и их надо применять на практике. Хельсинки 1992 г. (Решения: VI. Человеческое измерение) Терпимость и недискреминация Государства-участники (30) Выражают свою обеспокоенность в связи с недавними вопиющими проявле- ниями нетерпимости, дискриминации, агрессивного национализма, ксенофобии, антисемитизма и расизма и подчеркивают важнейшую роль терпимости, взаимо- понимания и сотрудничества в деле создания и сохранения устойчивых демокра- тических обществ. Рим 1993 г. (Решения: X. Декларация об агрессивном национализме, расизме, шовинизме, ксенофобии и антисемитизме) 1. (…) министры с глубокой озабоченностью отметили растущие проявления агрессивного национализма, такие, как территориальный экспансионизм, а также расизм, шовинизм, ксенофобия и антисемитизм. Они прямо противоречат при- нципам и обязательствам, принятым в рамках СБСЕ. 2. Министры также отметили, что эти явления могут привести к проявлению насилия, стремлению к отделению с применением силы и к раздорам на этничес- кой почве, а в наихудших случаях к варварской практике массовых депортаций, этнических чисток и насилию в отношении невинных гражданских лиц. 3. Агрессивный национализм, расизм, шовинизм, ксенофобия и антисемитизм создают обстановку этнической, политической и социальной напряженности в государствах и в отношениях между ними. Они также подрывают международ- ную стабильность и предпринимаемые во всем мире усилия с целью прочного закрепления всеобщих прав человека. 4. Министры сосредоточили внимание на необходимости срочных действий с целью прочного обеспечения строгого соблюдения норм международного гума- нитарного права, включая преследование и наказание виновных в военных пре- ступлениях и в других преступлениях против человечества.

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5. Министры согласились с тем, что СБСЕ должно играть важную роль в этих усилиях. Ясные стандарты поведения, отраженные в обязательствах СБСЕ, вклю- чают активную поддержку обеспечения равных прав каждого человека в соот- ветствии с международным правом, а также защиты национальных меньшинств. Будапешт 1994 г. (Решения: VIII. Человеческое измерение) 25. Государства-участники осуждают проявления нетерпимости, особенно – агрессивного национализма, расизма, шовинизма, ксенофобии и антисемитизма, и будут оказывать дальнейшее содействие эффективным мерам, направленным на их искоренение. (…) Они осуждают все преступления, совершенные в целях так называемой этнической чистки, и будут продолжать оказывать эффективную поддержку находящемуся в Гааге Международному трибуналу по военным пре- ступлениям для бывшей Югославии. 26. Они положительно оценивают принятый Советом Европы план действий в отношении расизма, ксенофобии, антисемитизма и нетерпимости. Предприни- мая дальнейшие шаги в свете Декларации римской Встречи Совета, институты СБСЕ будут изучать возможности для совместной работы с Советом Европы, а также с ООН и другими международными организациями. 27. Вновь подтверждая свое обязательство обеспечивать свободу совести и рели- гии и способствовать созданию климата взаимной терпимости и уважения между верующими различных общин, а также между верующими и неверующими, они выразили озабоченность в связи с использованием религии в агрессивных наци- оналистических целях. Лиссабон 1996 г. (Декларация встречи на высшем уровне) 9. (…) Среди острых проблем человеческого измерения угрозой для стабильности в регионе ОБСЕ остаются непрекращающиеся нарушения прав человека, в част- ности в форме (…) проявления агрессивного национализма, расизма, шовинизма, ксенофобии и антисемитизма. Мы твердо намерены продолжать усилия по реше- нию этих проблем. 10. Памятуя о трагедиях, постигших за последнее время беженцев в различных частях региона ОБСЕ, и принимая во внимание проблему насильственной миг- рации, мы вновь заявляем о своем осуждении любой политики “этнических чис- ток” или массового изгнания населения и обязуемся воздерживаться от подобной политики. Наши государства будут создавать условия для безопасного и достой- ного возвращения беженцев и внутренне перемещенных лиц в соответствии с международными нормами. Следует добиваться их социальной реинтеграции в местах первоначального проживания на недискриминационной основе. (…)

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Стамбул 1999 г. (Хартия европейской безопасности: III. Наш общий ответ; IV. Наши общие инструменты) III. Наш общий ответ (…) 19. (…) Мы берем на себя обязательство противостоять таким угрозам безопас- ности, как нарушения прав человека и основных свобод, включая свободу мысли, совести, религии и убеждений, и проявления нетерпимости, агрессивного нацио- нализма, расизма, шовинизма, ксенофобии и антисемитизма. (…) 22. Мы отвергаем любую политику этнических чисток или массового изгнания. (…) IV. Наши общие инструменты (…) 44. Мы будем работать в целях укрепления роли ОБСЕ в деятельности, связанной с функциями гражданской полиции (…) Такая деятельность может включать: • полицейский мониторинг, в том числе с целью недопущения таких действий со стороны полиции, как дискриминация по религиозному и этническому призна- кам; (…) • создание полицейской службы, объединяющей в своем составе представителей разных этнических групп и/или вероисповеданий и способной заслужить дове- рие всего населения; Бухарест 2001 г. (Приложение к Решению No. 1: Борьба c терроризмом: Бухарест- ский план действий по борьбе с терроризмом) 11. Утверждение прав человека, терпимости и поликультурности. Государства- участники/Постоянный совет/БДИПЧ/Верховный комиссар по делам националь- ных меньшинств (ВКНМ)/Представитель по вопросам свободы средств массо- вой информации: (…) будут обеспечивать раннее предупреждение о возможности насилия, нетерпимости, экстремизма и дискриминации в отношении этих [этни- ческих, религиозных, языковых и других] групп адекватно реагировать на такие случаи и в то же время способствовать проявлению этими группами уважения к верховенству закона, демократическим ценностям и свободе личности (…) Порту 2002 г. (Решения: Решение No. 6: Толерантность и недискриминация) Совет министров, (…) вновь заявляя, что демократия и защита прав человека и основных свобод явля- ются важнейшими гарантиями толерантности и недискриминации и важными

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факторами стабильности, безопасности, сотрудничества и мирного развития в масштабах всего региона ОБСЕ и что в свою очередь толерантность и недискри- минация являются важными элементами утверждения прав человека, (…) отмечая, что утверждение толерантности и недискриминации может способс- твовать также ликвидации основы для разжигания ненависти, для агрессивного национализма, расизма, шовинизма, ксенофобии, антисемитизма и воинствую- щего экстремизма, признавая, что государства-участники ответствены за утверждение толерант- ности и недискриминации, 1.(a) самым решительным образом осуждает все проявления агрессивного нацио- нализма, расизма, шовинизма, ксенофобии, антисемитизма и воинствующего экс- тремизма, а также пропаганду ненависти и случаи дискриминации на почве рели- гии или убеждений; (…) 2. Постановляет активизировать усилия, направленные на поддержание и укреп- ление толерантности и недискриминации, при содействии институтов ОБСЕ и в сотрудничестве с соответствующими международными организациями и граж- данским обществом, например, путем обмена информацией и лучшей практикой; (…) 5. Осуждает, в частности, дискриминацию по религиозному признаку и обязуется предпринимать усилия по недопущению и защите от посягательств, направлен- ных против любой религиозной группы, — будь то против отдельных лиц, рели- гиозных святынь или предметов культа; 6. Осуждает, в частности, участившиеся в последнее время антисемитские выходки в регионе ОБСЕ, признавая, что на всем протяжении истории явление антисемитизма было источником серьезной угрозы свободе; 7. Также осуждает участившиеся в последнее время акты дискриминации и наси- лия в отношении мусульман в регионе ОБСЕ и категорически не приемлет отож- дествление терроризма и экстремизма с какой-либо конкретной религией или культурой; 8. Постановляет твердо и во всеуслышание выступать против разжигания нена- висти и других проявлений агрессивного национализма, расизма, шовинизма, ксенофобии, антисемитизма и воинствующего экстремизма, а также против слу- чаев дискриминации по признаку религии или убеждений; (…)

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Маастрихт 2003 г. (I. Стратегия ОБСЕ по противодействию угрозам безопасности и стабильности в XXI веке) Угрозы безопасности и стабильности в XXI веке (…) 12. Практика, связанная с дискриминацией и нетерпимостью, не только угрожает безопасности отдельных лиц, но и способна служить причиной более широкомас- штабных конфликтов и насилия. Она может корениться в таких явлениях, как этническая и религиозная напряженность, агрессивный национализм, шовинизм и ксенофобия, а также возникать на почве расизма, антисемитизма, агрессивного экстремизма и отсутствия уважения к правам лиц, принадлежащих к националь- ным меньшинствам. 13. Мобильность мигрантов как группы населения и возникновение во всех час- тях региона ОБСЕ обществ, характеризующихся сосуществованием многих куль- тур, создают не только все более широкие возможности, но и растущие вызовы. Отсутствие интеграции в обществе, а также отсутствие у каждого проживающего в нем уважения к правам всех других могут вести к подрыву стабильности. (…) Противодействие угрозам, связанным с дискриминацией и нетерпимостью 36. Дискриминация и нетерпимость относятся к числу факторов, которые спо- собны провоцировать конфликты, подрывающие безопасность и стабильность. Основываясь на своих обязательствах в области человеческого измерения, ОБСЕ стремится поощрять повсюду в своем регионе создание условий, позволяющих всем в полной мере пользоваться своими правами человека и основными сво- бодами под защитой эффективных демократических институтов, надлежащих судебных процедур и верховенства закона. Это включает обеспечение безопасной обстановки и соответствующих институтов для мирной дискуссии и выражения своих интересов всеми лицами и общественными группами. Важную роль в этом отношении призвано играть гражданское общество, и ОБСЕ будет продолжать поддерживать организации гражданского общества и содействовать их укрепле- нию. (…) 38. Государства-участники, органы и институты ОБСЕ твердо намерены наращи- вать свои усилия по противодействию угрозам, порождаемым дискриминацией и нетерпимостью. Гармоничные отношения между этническими, религиозными, языковыми и иными группами, а также права лиц, принадлежащих к националь- ным меньшинствам, будут активно поощряться, как и равенство возможностей для женщин и мужчин. Насилию, нетерпимости, экстремизму и дискриминации по отношению к этим группам, включая рабочих-мигрантов, лиц, ищущих убе- жища, и других иммигрантов, необходимо давать отпор, а лиц, виновных в таких действиях, привлекать к ответственности. В то же время важнейшее значение

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имеет уважение принадлежащими к таким группам лицами верховенства закона, демократических ценностей и свобод личности. Маастрихт 2003 г. (Решения: Решение No. 4/03: Толерантность и недискримина- ция) Совет министров, (…) вновь подтверждая свое обязательство способствовать толерантности и бороться с дискриминацией, а также свою озабоченность всеми проявлениями агрессив- ного национализма, расизма, шовинизма, ксенофобии, антисемитизма и сопро- вождающегося насилием экстремизма во всех государствах-участниках, равно как и дискриминацией, в частности, по признаку расы, цвета кожи, пола , языка, религии или убеждений, политических или иных взглядов, национального или социального происхождения, имущественного, сословного или иного положения, настоятельно призывая соответствующие органы власти во всех государствах- участниках продолжать выступать на соответствующем уровне и надлежащем образом с публичным осуждением актов насилия, совершенных на почве дискри- минации и нетерпимости, утверждая приверженность наращиванию своих усилий по содействию толерант- ности и недискриминации во всех областях, (…) 8. Признает необходимость бороться с преступлениями на почве ненависти, к которым может подталкивать пропаганда расизма, ксенофобии и антисемитизма в Интернете. (…) 9. Заявляет о важности свободы мысли, совести, религии и убеждений и осуж- дает любую дискриминацию и насилие, в том числе против любых религиозных групп или отдельных верующих. Обязуется обеспечивать и поощрять свободу личности исповедывать и практиковать, единолично или совместно с другими, религию или веру — при необходимости посредством транспарентных и недис- криминационных законов, правил, практики и политики. Рекомендует государс- твам-участникам обращаться за помощью к БДИПЧ и его группе экспертов по вопросам свободы религии и убеждений. Подчеркивает важность продолжения и укрепления межконфессионального и межкультурного диалога в интересах боль- шей толерантности, взаимного уважения и взаимопонимания; (…) 11. Принимает обязательство бороться с дискриминацией против рабочих-миг- рантов. Обязуется также облегчать социальную интеграцию рабочих-мигрантов в тех странах, где они законно проживают. Призывает БДИПЧ укреплять свою деятельность в этой области;

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12. Обязуется в этой связи, при соблюдении национального законодательства и международных обязательств, вести борьбу с дискриминацией лиц, ищущих убе- жища, а также беженцев, там, где она существует, и призывает БДИПЧ укреплять свою деятельность в этой области; 13. Принимает во внимание Руководящие принципы ООН касательно внутрен- него перемещения как полезную основу для работы ОБСЕ и усилий государств- участников по решению проблем внутреннего перемещения; (…) 15. Постановляет активизировать сотрудничество ОБСЕ с соответствующими международными организациями, такими, как Организация Объединенных Наций, Совет Европы и Европейский союз, а также с гражданским обществом и соответствующими неправительственными организациями в целях утверждения толерантности и недискриминации; (…) София 2004 г. (Декларация министров о шестидесятой годовщине окончания второй мировой войны) (…) История учит нас тому, какой угрозой чреваты нетерпимость, дискриминация, экстремизм и ненависть на этнической, расовой и религиозной почве. Мы твердо намерены вести борьбу с этими опасными явлениями, в том числе через ОБСЕ, и отвергаем любые попытки их оправдания. Мы решительно осуждаем любое отрицание холокоста. Мы осуждаем все формы этнической чистки. Мы подтверждаем свою приверженность принятой 9 декабря 1948 года Конвенции ООН о предупреждении преступления геноцида и наказа- нии за него. Мы призываем государства-участники предпринять все возможные действия для недопущения попыток совершения геноцида, как в наши дни, так и в будущем. Виновные в подобных преступлениях должны привлекаться к ответс- твенности. (…) София 2004 г. (Решения: Решение No. 12/04: Толерантность и недискриминация) Совет министров, (…) 2. Одобряет решения Постоянного совета о борьбе с антисемитизмом (PC. DEC/607) и о толерантности и борьбе с расизмом, ксенофобией и дискримина- цией (PC.DEC/621), а также Решение Постоянного совета о содействии толеран- тности и свободе СМИ в Интернете (PC.DEC/633), прилагаемые к настоящему решению;

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3. Постановляет также активизировать усилия по выполнению этих трех реше- ний, содержащих обязательства, в частности, в таких областях, как образование, средства массовой информации, законодательство, охрана правопорядка, мигра- ция и свобода религии; (…) 5. Приветствует намерение Действующего председателя назначить в соответс- твии с Решением No. 8 встречи Совета министров в Порту трех личных предста- вителей в рамках общих усилий ОБСЕ по борьбе с дискриминацией и содействию толерантности. (…) София 2004 г. (Решения: Приложение к Решению No. 12/04: Толерантность и недискриминация; Решение Постоянного совета No. 607: Борьба с антисемитиз- мом) Постоянный совет (…) в целях наращивания наших совместных усилий по борьбе с антисемитизмом во всем регионе ОБСЕ постановляет следующее. 1. Государства-участники обязуются: • стремиться к тому, чтобы их правовые системы способствовали безопасной среде, свободной от антисемитской травли, насилия или дискриминации в какой бы то ни было сфере жизни; (…) • бороться с преступлениями, совершаемыми на почве ненависти, разжигать которую может расистская, ксенофобская и антисемитская пропаганда в средс- твах массовой информации и в Интернете; • поощрять и поддерживать усилия международных организаций и НПО в этих областях; (…) (…) • взаимодействовать с Парламентской ассамблеей ОБСЕ в определении подходя- щих способов периодического рассмотрения проблемы антисемитизма; • поощрять развитие неофициального обмена мнениями между экспертами в рамках соответствующих форумов относительно лучшей практики и опыта в области правоприменения и правового образования; (…)

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София 2004 г. (Решения: Приложение к Решению No. 12/04: Толерантность и недискриминация; Решение Постоянного совета No. 621: Толерантность и борьба с расизмом, ксенофобией и дискриминацией) Постоянный совет, (…) с целью наращивания наших общих усилий в борьбе с проявлениями нетерпи- мости во всем регионе ОБСЕ, постановляет следующее: 1. Государства-участники обязуются: (…) • принимать меры по пресечению актов дискриминации и насилия в отношении мусульман в регионе ОБСЕ; • принимать в соответствии со своим внутренним законодательством и междуна- родными обязательствами меры против дискриминации, нетерпимости и ксе- нофобии в отношении мигрантов и рабочих-мигрантов; • рассмотреть вопрос о принятии мер по повышению осведомленности обще- ственности относительно обогащающего вклада мигрантов и рабочих-мигран- тов в жизнь общества; • бороться с преступлениями на почве ненависти, разжигать которую может расистская, ксенофобская и антисемитская пропаганда в Интернете, и надлежа- щим образом публично осуждать такие преступления в тех случаях, когда они совершаются; (…) • поощрять и поддерживать усилия международных организаций и НПО на этих направлениях; (…) • изучить возможность учреждения внутри стран соответствующих органов, отвечающих за поддержку толерантности и борьбу с расизмом, ксенофобией и дискриминацией и связанной с ними нетерпимостью, в том числе в отношении мусульман, и с антисемитизмом; (…) • взаимодействовать с Парламентской ассамблеей ОБСЕ в определении подходя- щих способов для периодического рассмотрения проблем расизма, ксенофобии и дискриминации; • поощрять развитие неофициального обмена мнениями между экспертами в рам- ках соответствующих форумов относительно лучшей практики и опыта по воп- росам правоприменения и правового образования; (…)

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5.3.2 Международные инструменты Копенгаген 1990 г. (40) (…) [Государства-участники] (…) (40.6) рассмотрят вопрос о присоединении, если они этого еще не сделали, к меж- дународным инструментам, в которых рассматривается проблема дискримина- ции, и будут обеспечивать полное выполнение взятых по ним обязательств, вклю- чая обязательства, касающиеся представления периодических докладов; (40.7) рассмотрят также вопрос о признании тех международных механизмов, которые позволяют государствам и отдельным лицам направлять сообщения, касающиеся дискриминации, в международные органы. Хельсинки 1992 г. (Решения: VI. Человеческое измерение) (32) [Государства-участники] изучат возможности соблюдения Международной конвенции о ликвидации всех форм расовой дискриминации, если они еще не сделали этого. София 2004 г. (Декларация министров о шестидесятой годовщине окончания второй мировой войны) (…) Мы подтверждаем свою приверженность принятой 9 декабря 1948 года Кон- венции ООН о предупреждении преступления геноцида и наказании за него. (…)

5.3.3 Законодательство и применение законов и политики Копенгаген 1990 г. (40) (…) [Государства-участники] (…) (40.1) будут принимать эффективные меры, включая, в соответствии с их консти- туционными системами и их международными обязательствами, принятие таких законов, которые могут быть необходимы для обеспечения защиты от любых актов, которые представляют собой подстрекательство к насилию против лиц или групп, основанное на национальной, расовой, этнической или религиозной дискриминации, враждебности или ненависти, включая антисемитизм; (…) (40.5) будут признавать право каждого лица на эффективные средства правовой защиты и будут стремиться признавать, в соответствии с национальным законо- дательством, право заинтересованных лиц и групп выступать с жалобами и под- держивать жалобы по поводу актов дискриминации, включая акты расизма и ксе- нофобии. Хельсинки 1992 г. (Решения: VI. Человеческое измерение) (33) [Государства-участники] изучат возможность принятия в рамках своих кон- ституционных систем и в соответствии с их международными обязательствами соответствующих мер, которые обеспечивали бы для всех лиц, находящихся на

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их территории, защиту от дискриминации по расовым, этническим и религиоз- ным признакам, а также защищали бы всех лиц, включая иностранцев, от актов насилия, в том числе по любому из этих признаков. Кроме того, они будут в пол- ной мере использовать свои внутренние юридические процедуры, включая обес- печение соблюдения существующих законов в этом отношении. (…) Будапешт 1994 г. (Решения: VIII. Человеческое измерение) 25. Государства-участники осуждают проявления нетерпимости, особенно - агрессивного национализма, расизма, шовинизма, ксенофобии и антисемитизма, и будут оказывать дальнейшее содействие эффективным мерам, направленным на их искоренение. (…) Они будут стремиться укрепить или принять надлежащее законодательство на этот счет и осуществлять необходимые меры для обеспече- ния эффективного применения существующего законодательства таким образом, чтобы предотвратить проявления этих явлений. Они также подчеркивают, что действия по борьбе с этими явлениями должны рассматриваться как составная часть политики и просвещения, ориентированных на интеграцию. (…) Порту 2002 г. (Решения: Решение No. 6: Толерантность и недискриминация) Совет министров, (…) 9. Призывает соответствующие органы государств-участников оперативно и беспристрастно расследовать акты насилия, особенно в случаях, когда имеются разумные основания подозревать, что они были мотивированы агрессивным национализмом, расизмом, шовинизмом, ксенофобией, антисемитизмом и воинс- твующим экстремизмом, а также мотивированные ненавистью выпады про- тив той или иной религии либо тех или иных убеждений и подвергать виновных судебному преследованию в соответствии с внутренним законодательством и с соблюдением соответствующих международных стандартов в области прав чело- века; (…) Маастрихт 2003 г. (Решения: Приложение к Решению No. 3/03: План действий по улучшению положения рома и синти в регионе ОБСЕ) III. Борьба с расизмом и дискриминацией В целях противодействия предубеждению против рома и синти и эффективной выработки и реализации политики борьбы с дискриминацией и насилием на расовой почве рекомендуются следующие действия:

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Законодательство и правоохранительная деятельность Рекомендуемые действия государств-участников: 7. Рассмотреть вопрос о ратификации в возможно кратчайшие сроки — если этого еще не было сделано — соответствующих международных договоров, и в частности Международной конвенции о ликвидации всех форм расовой дискри- минации. 8. Принять и применять эффективное антидискриминационное законодательс- тво в целях борьбы с дискриминацией по расовому и этническому признаку во всех сферах, включая, в частности, доступ к жилью, вопросы гражданства и пос- тоянного проживания, образование, занятость, медицинское обслуживание и социальные услуги. Привлекать представителей рома и синти к работе по концеп- туализации, реализации и оценке. 9. Антидискриминационное законодательство должно предусматривать: • запрет как прямой, так и косвенной расовой дискриминации; • введение эффективных и пропорциональных санкций, достаточных для предуп- реждения актов или практики дискриминации; • применение более строгих мер наказания за преступления на расовой почве, совершаемые как частными лицами, так и государственными чиновниками; • равный доступ к эффективной средствам правовой защиты (судебным или административным процедурам, процедурам примирения или посредничес- тва). 10. Необходимо обеспечить, чтобы национальное законодательство запрещало любые акты дискриминации, а также чтобы все случаи предположительной диск- риминации тщательно и объективно расследовались. 11. Создать в соответствующих случаях специализированные институты, обес- печивающие применение такого законодательства, а также национальные меха- низмы наблюдения за ходом его применения и регулярного представления об этом докладов в условиях транспарентности. (…) Маастрихт 2003 г. (Решения: Решение No. 4/03: Толерантность и недискримина- ция) Совет министров, (…) 6. (…) Признавая важное значение законодательства для борьбы с преступлени- ями на почве ненависти, государства-участники будут информировать БДИПЧ об имеющемся законодательстве относительно преступлений, мотивированных нетерпимостью и дискриминацией, и в соответствующих случаях обращаться к БДИПЧ за помощью в разработке и пересмотре такого законодательства; (…)

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София 2004 г. (Решения: Приложение к Решению No. 12/04: Толерантность и недискриминация; Решение Постоянного совета No. 621: Толерантность и борьба с расизмом, ксенофобией и дискриминацией) Постоянный совет, (…) с целью наращивания наших общих усилий в борьбе с проявлениями нетерпи- мости во всем регионе ОБСЕ, постановляет следующее: 1. Государства-участники обязуются: • рассмотреть вопрос о принятии или, соответственно, усилении законодательс- тва, запрещающего дискриминацию по признаку расы, цвета кожи, пола, языка, религии, политических или иных взглядов, национального или социального происхождения, имущественного, сословного или иного положения, а также подстрекательство к совершению преступлений на почве ненависти, мотивиру- емой этими признаками; (…) • рассмотреть вопрос об организации учебных программ для должностных лиц правоохранительных и судебных органов, посвященных законодательству, каса- ющемуся преступлений на почве ненависти, и обеспечению его применения; София 2004 г. (Решения: Приложение к Решению No. 12/04: Толерантность и недискриминация; Решение Постоянного совета No. 633: Содействие толерант- ности и свободе СМИ в интернете) Постоянный совет, (…) постановляет: (…) 2. Государства-участники должны расследовать случаи насилия и носящих пре- ступный характер угроз его применения, мотивированных расистскими, ксено- фобскими, антисемитскими или иными связанными с этим предрассудками, рас- пространяемыми через Интернет, и при необходимости обеспечивать преследо- вание виновных по всей строгости закона; 3. Государствам-участникам следует обеспечивать профессиональную подго- товку сотрудников правоохранительных органов, а также прокуроров, по вопро- сам, касающимся преступлений, мотивированных расистскими, ксенофобскими, антисемитскими или иными связанными с этим предрассудками, распространя- емым через Интернет, а также предоставлять друг другу в рамках обмена приме- рами наилучшей практики информацию об успешных программах такой подго- товки;

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5.3.4 Сбор информации и наблюдение Женева 1991 г. (VI) Кроме того, с целью более полного осознания общественностью предрассудков и ненависти, совершенствования соблюдения законов о преступлениях, связанных с ненавистью, а также с целью осуществления иных дальнейших усилий по пре- одолению ненависти и предрассудков в обществе, [государства-участники] будут прилагать усилия с целью сбора, издания на регулярной основе и предоставле- ния в распоряжение общественности данных о преступлениях на своих соответс- твующих территориях, в основе которых лежат предрассудки в отношении расы, этнического происхождения или религии, включая руководящие принципы, используемые для сбора таких данных. Эти данные не должны содержать инфор- мации о конкретных лицах. Маастрихт 2003 г. (I. Стратегия ОБСЕ по противодействию угрозам безопасности и стабильности в XXI веке) 41. Будет полностью задействован потенциал БДИПЧ в области наблюдения, а оперативное взаимодействие с другими органами по наблюдению в таких облас- тях, как сбор данных, обмен информацией и совместный анализ, будет разви- ваться в целях составления максимально полной картины происходящего. Это позволит ОБСЕ эффективно сосредоточивать работу на самых приоритетных направлениях. Маастрихт 2003 г. (Решения: Решение No. 4/03: Толерантность и недискримина- ция) Совет министров, (…) 6. Побуждает все государства-участники собирать и хранить надежную инфор- мацию и статистические данные о преступлениях на почве ненависти, вклю- чая формы воинствующего проявления расизма, ксенофобии, дискриминации и антисемитизма, как это обсуждалось и было рекомендовано в ходе вышеупомя- нутых конференций. (…) София 2004 г. (Решения: Приложение к Решению No. 12/04: Толерантность и недискриминация; Решение Постоянного совета No. 607: Борьба с антисемитиз- мом) Постоянный совет, (…) в целях наращивания наших совместных усилий по борьбе с антисемитизмом во всем регионе ОБСЕ постановляет следующее. 1. Государства-участники обязуются:

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(…) • собирать и хранить заслуживающую доверия информацию и статистические данные о совершаемых на их территории антисемитских и иных преступлениях на почве ненависти, периодически доводить эту информацию до сведения Бюро ОБСЕ по демократическим институтам и правам человека (БДИПЧ) и предо- ставлять ее в распоряжение общественности; (…) София 2004 г. (Решения: Приложение к Решению No. 12/04: Толерантность и недискриминация; Решение Постоянного совета No. 621: Толерантность и борьба с расизмом, ксенофобией и дискриминацией) Постоянный совет, (…) с целью наращивания наших общих усилий в борьбе с проявлениями нетерпи- мости во всем регионе ОБСЕ, постановляет следующее: 1. Государства-участники обязуются: (…) • собирать и хранить заслуживающую доверия информацию и статистические данные о совершаемых на их территории преступлениях на почве ненависти, мотивированных расизмом, ксенофобией и связанными с ними дискримина- цией и нетерпимостью, периодически передавать такую информацию Бюро ОБСЕ по демократическим институтам и правам человека (БДИПЧ) и предо- ставлять эту информацию в распоряжение общественности;

5.3.5 Поощрение толерантности, понимания и уважения, включая уважение памяти Хельсинки 1975 г. (Вопросы, относящиеся к безопасности в Европе: 1. (b) Воп- росы, относящиеся к претворению в жизнь некоторых из принципов, изложенные выше) (i) Государства-участники, (…) заявляют, что они будут уважать и выполнять в их отношениях друг с другом, в том числе следующие положения, которые находятся в соответствии с Деклара- цией принципов, которыми государства-участники будут руководствоваться во взаимных отношениях: (…) • Содействовать всеми средствами, которые каждое из них сочтет подходящими, созданию атмосферы доверия и уважения между народами, отвечающей их обя- занности воздерживаться от пропаганды агрессивных войн или любого приме-

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нения силы или угрозы силой, несовместимыми с целями Объединенных Наций и с Деклараций принципов, которыми государства-участники будут руководс- твоваться во взаимных отношениях, против другого государства-участника. (…) Вена 1989 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) (16) С целью обеспечить свободу личности и исповедовать религию или веру госу- дарства-участники будут, среди прочего: (…) (16.2) способствовать климату взаимной терпимости и уважения между верую- щими различных объединений, а также между верующими и неверующими; Вена 1989 г. (Сотрудничество в гуманитарных и других областях; Сотрудничество и обмены в области культуры) (61) Должным образом учитывая своеобразие и разнообразие их соответствую- щих культур, они будут поощрять усилия, направленные на изучение общих черт и обеспечение лучшего понимания своего культурного наследия. Соответственно они будут поощрять инициативы, которые могут способствовать улучшению зна- ний о культурном наследии других государств-участников во всех его формах, включая региональные аспекты и народное творчество. Копенгаген 1990 г. (36) (…) Каждое государство-участник будет содействовать климату взаимного уважения, понимания, сотрудничества и солидарности между всеми лицами, проживающими на его территории, без различия этнического или национального происхождения или религии и будут поощрять решение проблем с помощью диа- лога, основанного на принципах верховенства закона. (…) (40) (…) [Государства-участники] (…) (…) (40.3) будут принимать эффективные меры в соответствии с их конституцион- ными системами, на национальном, региональном и местном уровнях для содейс- твия взаимопониманию и терпимости, особенно в областях образования, куль- туры и информации; (40.4) будут стремиться обеспечивать, чтобы в рамках задач по образованию уде- лялось особое внимание проблеме расовых предрассудков и ненависти и укреп- лению уважения к различным цивилизациям и культурам. Париж 1990 г. (Новая эра демократии, мира и единства) Мы признаем важнейший вклад нашей общей европейской культуры и разделяе- мых нами ценностей в преодоление раскола на континенте. Поэтому мы подчер-

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киваем свою приверженность свободе творчества, а также защите и развитию нашего культурного и духовного наследия во всем его богатстве и разнообразии. Краков 1991 г. (Преамбула) Государства-участники выражают свою глубокую убежденность в том, что они совместно пользуются общими ценностями, созданными историей и основан- ными, среди прочего, на уважении личности, свободы совести, религии или веро- исповедания, свободы самовыражения, признании важности духовных и куль- турных ценностей, приверженности верховенству закона, терпимости и откры- тости для диалога с представителями других культур. (…) Государства-участники уважают незаменимую самобытность всех своих куль- тур и будут стремиться содействовать непрерывному культурному диалогу между собой и с другими странами мира. Они вновь подтверждают свою убежденность в том, что уважение культурного многообразия способствует взаимопониманию и проявлению терпимости отдельных людей и их групп. Они считают, что региональные аспекты культуры должны сами по себе служить фактором взаимопонимания между людьми. Региональное культурное многообразие является отражением богатства общей культурной самобытности государств-участников. Ее сохранение и охрана спо- собствуют созданию демократической, мирной и объединенной Европы. (…) II. Культура и наследие (…) 18. Для обеспечения эффективного и всестороннего сохранения культурного наследия большую роль играет партнерство на местном, региональном и наци- ональном уровнях между различными группами как частного, так и государс- твенного сектора. Сохранению и разъяснению важности культурных ценностей и культурного наследия различных групп будет способствовать привлечение этих групп к этой работе, что позволит обеспечить терпимое и уважительное отноше- ние к различным культурам, имеющее огромное значение. (…) III. Основные области сохранения и сотрудничества 27. Учитывая важную роль, которую региональные аспекты культуры могут играть в формировании связей между людьми за пределами национальных гра- ниц, государства-участники будут способствовать региональному сотрудничес- тву на уровне местных и национальных властей, а также неправительственных организаций с целью установления добрососедских отношений. (…)

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31. Государства-участники будут стремиться к сохранению и охране таких памят- ников и памятных мест, включая наиболее известные концентрационные лагеря, а также соответствующие архивы, которые свидетельствуют о трагических собы- тиях нашего общего прошлого. Такие шаги необходимо предпринять с тем, чтобы эти события остались в памяти, способствовали ознакомлению с ними настоя- щих и будущих поколений и чтобы таким образом можно было гарантировать, что они никогда не повторятся. 32. Разъяснение значения вызывающих особые чувства памятных мест с уче- том социального и культурного разнообразия может служить в качестве важного средства формирования терпимости и взаимопонимания между людьми. Женева 1991 г. (VI) [Государства-участники] будут принимать эффективные меры для поощрения терпимости, взаимопонимания и равенства возможностей, и добрых взаимоотно- шений между имеющими различное происхождение отдельными лицами в преде- лах их страны. Москва 1991 г. (38.1) (…) Они будут принимать в соответствии с национальным законодатель- ством и международными обязательствами эффективные меры для поощрения терпимости, понимания, равенства возможностей и уважения основных прав человека трудящихся-мигрантов; (…) Хельсинки 1992 г. (Декларация встречи на высшем уровне) 12. (…) Экономический спад, социальная напряженность, агрессивный нацио- нализм, нетерпимость, ксенофобия и этнические конфликты угрожают стабиль- ности в регионе СБСЕ. (…) Для формирования демократических и плюралистических обществ, обеспечива- ющих всестороннюю защиту многообразия и его уважение на практике, сделать предстоит еще многое. Вследствие этого мы отвергаем расовую, этническую и религиозную дискриминацию в любой форме. Свободе и терпимому отношению необходимо учиться, и их надо применять на практике. Хельсинки 1992 г. (Решения: VI. Человеческое измерение) Терпимость и недискреминация Государства-участники (30) Выражают свою обеспокоенность в связи с недавними вопиющими проявле- ниями нетерпимости, дискриминации, агрессивного национализма, ксенофобии, антисемитизма и расизма и подчеркивают важнейшую роль терпимости, взаимо- понимания и сотрудничества в деле создания и сохранения устойчивых демокра- тических обществ. (…)

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(34) Изучат возможность разработки программ по созданию условий для разви- тия принципов недискриминации и углубления взаимопонимания между пред- ставителями различных культур, упор в рамках которых будет сделан на просве- тительскую деятельность в области прав человека, мероприятия, сориентирован- ные на рядовых граждан, а также на обучение и исследования в области культур- ного многообразия. Рим 1993 г. (Решения: IV. Человеческое измерение) 1. (…) С тревогой осознавая, что коренные причины напряженности кроются в исторических предрассудках, министры призвали предпринять усилия, в част- ности, в рамках просветительской деятельности, направленные на воспитание терпимости и осознание принадлежности к системе общих ценностей. Минис- тры особо отметили, что выполнение обязательств в области человеческого изме- рения должно занимать центральное место в усилиях СБСЕ по предотвращению конфликтов. Стамбул 1999 г. (Хартия европейской безопасности: III. Наш общий ответ) 19. (…) Мы осуждаем насилие в отношении любого меньшинства. Мы обязуемся принимать меры по воспитанию терпимости и построению плюралистических обществ, где всем, независимо от их этнического происхождения, обеспечено полное равенство возможностей. (…) Бухарест 2001 г. (Приложение к Решению No. 1: Борьба c терроризмом: Бухарест- ский план действий по борьбе с терроризмом) 11. Утверждение прав человека, терпимости и поликультурности. Государства- участники/Постоянный совет/БДИПЧ/Верховный комиссар по делам нацио- нальных меньшинств (ВКНМ)/Представитель по вопросам свободы средств мас- совой информации: будут пропагандировать и укреплять терпимость, сосущест- вование и гармоничные отношения между этническими, религиозными, языко- выми и другими группами, а также конструктивное сотрудничество между госу- дарствами-участниками в этом отношении (…) Бухарест 2001 г. (Решения: Решение No. 5) Совет министров, (…) призывает государства-участники способствовать терпимости и недопущению дискриминации, в том числе с помощью кампаний по повышению осведомлен- ности и посредством просветительской работы; (…) Порту 2002 г. (Хартия ОБСЕ о предупреждении терроризма и борьбе с ним) 21. Признают положительную роль, которую средства массовой информации могут играть в пропаганде толерантности и взаимопонимания между представи- телями различных религий, убеждений, культур и народов (…)

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Порту 2002 г. (Решения: Решение No.6: Толерантность и недискриминация) Совет министров, (…) вновь заявляя, что демократия и защита прав человека и основных свобод явля- ются важнейшими гарантиями толерантности и недискриминации и важными факторами стабильности, безопасности, сотрудничества и мирного развития в масштабах всего региона ОБСЕ и что в свою очередь толерантность и недискри- минация являются важными элементами утверждения прав человека, (…) напоминая о постоянной работе, ведущейся структурами и институтами ОБСЕ в области поощрения прав человека, толерантности, недискриминации и мно- гообразия культур, в частности, в рамках совещаний и мероприятий, проектов и программ в области человеческого измерения, в том числе проводимых государс- твами-участниками, (…) подчеркивая позитивную роль поликультурного и межконфессионального диа- лога в углублении взаимопонимания между странами и народами, отмечая, что утверждение толерантности и недискриминации может способс- твовать также ликвидации основы для разжигания ненависти, для агрессивного национализма, расизма, шовинизма, ксенофобии, антисемитизма и воинствую- щего экстремизма, признавая, что государства-участники ответствены за утверждение толерант- ности и недискриминации, (…) 1. (…) (b) обязуется и далее развивать поликультурный, межэтнический и межкон- фессиональный диалог, в котором будет приветствоваться активное участие пра- вительств и гражданского общества; (…) 2. Постановляет активизировать усилия, направленные на поддержание и укреп- ление толерантности и недискриминации, при содействии институтов ОБСЕ и в сотрудничестве с соответствующими международными организациями и граж- данским обществом, например, путем обмена информацией и лучшей практикой; (…) 4. Обязуется принять, соблюдая требования соответствующих конституционных систем, надлежащие меры на национальном, региональном и местном уровне по утверждению толерантности и недискриминации, а также по борьбе с предрас- судками и искажением фактов, особенно в сфере образования, культуры и инфор- мации;

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Маастрихт 2003 г. (I. Стратегия ОБСЕ по противодействию угрозам безопасности и стабильности в XXI веке) 40. Усилия ОБСЕ будут, в частности, ориентированы на молодежь, с тем, чтобы воспитывать у нее понимание необходимости проявлять толерантность, а также важности примирения и мирного существования. Мировоззрение молодежи и ее представления о будущем имеют ключевое значение. В соответствующих случаях ОБСЕ будет поэтому принимать на себя более весомую роль в области образо- вания. Особого внимания заслуживает такое направление, как пропаганда прав человека. София 2004 г. (Решения: Приложение к Решению No. 12/04: Толерантность и недискриминация; Решение Постоянного совета No. 607: Борьба с антисемитиз- мом) Постоянный совет, (…) в целях наращивания наших совместных усилий по борьбе с антисемитизмом во всем регионе ОБСЕ, постановляет следующее. 1. Государства-участники обязуются: (…) • по мере необходимости способствовать реализации образовательных программ, направленных на противодействие антисемитизму; • способствовать сохранению памяти о трагедии холокоста и, по мере необходи- мости, просвещению в этой области, а также осознанию важности уважитель- ного отношения ко всем этническим и религиозным группам; (…) София 2004 г. (Решения: Приложение к Решению No. 12/04: Толерантность и недискриминация; Решение Постоянного совета No. 621: Толерантность и борьба с расизмом, ксенофобией и дискриминацией) 1. Государства-участники обязуются: (…) • поддерживать и, при необходимости, наращивать просветительские программы, нацеленные на воспитание толерантности и борьбу с расизмом, ксенофобией и дискриминацией; • поддерживать и облегчать открытый и транспарентный межконфессиональный и межкультурный диалог и партнерство в интересах толерантности, взаимного уважения и взаимопонимания (…) (…)

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• поощрять пропаганду толерантности, диалога, взаимного уважения и взаимопо- нимания в средствах массовой информации, включая Интернет; (…)

5.3.6 Роль СМИ Стамбул 1999 г. (Декларация встречи на высшем уровне) 27. Мы обязуемся обеспечивать свободу средств массовой информации, являющу- юся одним из основных условий существования плюралистических и демократи- ческих обществ. Мы глубоко обеспокоены злоупотреблением средствами массо- вой информации в зонах конфликтов для разжигания ненависти и межэтничес- кой напряженности, а также использованием правовых ограничений и нападок, чтобы лишить граждан свободных средств массовой информации. (…) Порту 2002 г. (Хартия ОБСЕ о предупреждении терроризма и борьбе с ним) Государства-участники (…) (…) 22. Обязуются бороться с пропагандой ненависти и принимать необходимые меры для недопущения злоупотребления средствами массовой информации и информационными технологиями в террористических целях, обеспечивая соот- ветствие таких мер внутреннему законодательству, международному праву и при- нятым в рамках ОБСЕ обязательствам; (…) Маастрихт 2003 г. (I. Стратегия ОБСЕ по противодействию угрозам безопасности и стабильности в XXI веке) 37. (…) Полностью уважая свободу выражения мнений, ОБСЕ будет стремиться бороться с преступлениями на почве ненависти, разжигать которую может про- паганда расизма, ксенофобии и антисемитизма в Интернете. София 2004 г. (Решения: Приложение к Решению No. 12/04: Толерантность и недискриминация; Решение Постоянного совета No. 621: Толерантность и борьба с расизмом, ксенофобией и дискриминацией) Постоянный совет, (…) с целью наращивания наших общих усилий в борьбе с проявлениями нетерпи- мости во всем регионе ОБСЕ, постановляет следующее: 1. Государства-участники обязуются: (…)

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• поощрять пропаганду толерантности, диалога, взаимного уважения и взаимопо- нимания в средствах массовой информации, включая Интернет; (…) София 2004 г. (Решения: Приложение к Решению No. 12/04: Толерантность и недискриминация; Решение Постоянного совета No. 633: Содействие толерант- ности и свободе СМИ в интернете) Постоянный совет, (…) постановляет: 1. Государствам-участникам следует предпринять меры к тому, чтобы Интернет оставался открытым и общедоступным форумом, обеспечивающим свободу мне- ний и свободу выражения, закрепленные во Всеобщей декларации прав человека, и способствовать расширению доступа в Интернет как через домашние подклю- чения, так и через учебные заведения; 2. Государства-участники должны расследовать случаи насилия и носящих пре- ступный характер угроз его применения, мотивированных расистскими, ксено- фобскими, антисемитскими или иными связанными с этим предрассудками, рас- пространяемыми через Интернет, и при необходимости обеспечивать преследо- вание виновных по всей строгости закона; 3. Государствам-участникам следует обеспечивать профессиональную подго- товку сотрудников правоохранительных органов, а также прокуроров, по вопро- сам, касающимся преступлений, мотивированных расистскими, ксенофобскими, антисемитскими или иными связанными с этим предрассудками, распространя- емым через Интернет, а также предоставлять друг другу в рамках обмена приме- рами наилучшей практики информацию об успешных программах такой подго- товки; (…) 5. Государствам-участникам следует конкретно изучить эффективность законов и других мер, регулирующих содержание Интернета, с точки зрения их влияния на число преступлений, совершаемых на почве расизма, ксенофобии и антисеми- тизма; 6. Государствам-участникам следует поощрять и поддерживать аналитически строгие исследования, касающиеся возможной связи между расистскими, ксе- нофобскими и антисемитскими высказываниями в Интернете и преступностью, мотивированной расистскими, ксенофобскими, антисемитскими или иными свя- занными с этим предрассудками; 7. ОБСЕ будет способствовать обменам, имеющим целью нахождение эффектив- ных подходов к проблеме пропаганды расизма, ксенофобии и антисемитизма в Интернете, которые не ставили бы под угрозу свободу информации и свободу

232 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I I Борьба с действиями, мотивированными предубеждениями, нетерпимостью и ненавистью

выражения. ОБСЕ будет создавать возможности для распространения информа- ции о наилучшей практике, в частности в ходе ежегодных совещаний по оценке выполнения, посвященных человеческому измерению; 8. Государствам-участникам следует поощрять разработку программ, направлен- ных на просвещение детей и молодежи в отношении мотивированных расист- скими, ксенофобскими, антисемитскими или иными связанными с этим предрас- судками, материалов, которые могут встречаться в Интернете. Кроме того, госу- дарства-участники и провайдеры интернет-услуг должны в соответствующих слу- чаях предпринимать шаги по повышению осведомленности родителей о широко распространенном программном обеспечении для фильтрации доступа, позволя- ющем родителям осуществлять более эффективный надзор и контроль за тем, как их дети пользуются Интернетом. Материалы об успешном опыте осуществления просветительских программ и применения средств фильтрации доступа должны широко популяризироваться в рамках обмена примерами наилучшей практики; 9. Государства-участники должны приветствовать продолжение и расшире- ние усилий НПО по отслеживанию расистских, ксенофобских и антисемитских материалов в Интернете, а также усилия НПО по распространению и преданию огласке информации о полученных результатах.

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6.1 Предотвращение преследования, насилия и эксплуатации на гендерной почве

См. также: á II. 4.4: Беженцы, перемещенные лица и возвращающиеся лица, лица без гражданства á II. 5.2: Равноправие мужчин и женщин á II. 6.2: Предотвращение торговли людьми á II. 7: Обязательства, относящиеся к международному гуманитарному праву

Москва 1991 г. [Государства-участники] (…) будут (40.7) стремиться покончить со всеми формами насилия в отношении женщин и со всеми формами торговли женщинами и эксплуатации женской проституции, в том числе путем принятия соответствующих юридических запретов в отношении подобных действий и других соответствующих мер. Стамбул 1999 г. (Хартия европейской безопасности: III. Наш общий ответ) 24. Мы будем принимать меры по (…) прекращению насилия в отношении жен- щин (…) а также сексуальной эксплуатации (…) Для предотвращения подобных преступлений мы будем, среди прочего, содействовать принятию или укрепле- нию законодательства для привлечения виновных в таких действиях к ответс- твенности и усиления защиты потерпевших. (…) Бухарест 2001 г. (Решения: Решение No. 8) Совет министров, (…) будучи убежден в способности женщин вносить вклад в предотвращение конф- ликтов, процессы примирения и миростроительства,

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подтверждая приверженность защите и обеспечению прав женщин и сознавая уязвимость женщин, особенно в конфликтных и постконфликтных ситуациях, будучи преисполнен решимости вести борьбу против всех форм насилия в отно- шении женщин, включая бытовое насилие, признавая необходимость создания реабилитационных центров для женщин, подвергшихся насилию, (…) призывает к выполнению Плана действий по гендерным вопросам; (…) София 2004 г. (Решения: Приложение к Решению No. 14/04: План действий ОБСЕ 2004 года по поддержке гендерного равенства) IV. Поддержка гендерного равенства в государствах-участниках (…) 42. Соответственно, государствам-участникам рекомендуется: (…) • предпринимать, где это необходимо, дальнейшие действия по обеспечению своим гражданам безопасных условий жизни и права на равную защиту в соот- ветствии с законом, в частности, путем наращивания деятельности, направлен- ной на ликвидацию всех форм насилия в отношении женщин (…) • поддерживать национальные и международные усилия по привлечению к ответственности лиц, совершивших против женщин преступления, которые в соответствии с применимыми нормами международного права квалифици- руются как военные преступления или преступления против человечности, и обеспечивать исполнение действующего национального законодательства о насилии в отношении женщин, а также, при необходимости, разработку нового законодательства; • в соответствии с рекомендациями, изложенными в Руководящих принципах по вопросам международной защиты, касающимся преследования по гендер- ному признаку, в контексте статьи 1А (2) Конвенции 1951 года о статусе бежен- цев и/или Протокола 1967 года к ней, касающегося статуса беженцев, ввести в государствах, которые еще не сделали этого, процедурную практику, обеспечи- вающую надлежащее рассмотрение ходатайств женщин в процессе определе- ния статуса беженцев, а также уделение надлежащего внимания всему спектру жалоб на преследования на гендерной почве; (…)

236 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I I Предотвращение торговли людьми

6.2 Предотвращение торговли людьми См. также: á I. 2.2.4 C: Механизм по оказанию государствам-участникам помощи в борьбе с торговлей людьми

6.2.1 Общие положения по поводу предотвращения Москва 1991 г. (40) Государства-участники (…) будут (…) (40.7) стремиться покончить со всеми формами насилия в отношении женщин и со всеми формами торговли женщинами и эксплуатации женской проституции, в том числе путем принятия соответствующих юридических запретов в отношении подобных действий и других соответствующих мер. Стамбул 1999 г. (Хартия европейской безопасности: III. Наш общий ответ) 24. Мы будем принимать меры по (…) прекращению (…) сексуальной эксплуата- ции и всех форм торговли людьми. Для предотвращения подобных преступле- ний мы будем, среди прочего, содействовать принятию или укреплению законо- дательства для привлечения виновных в таких действиях к ответственности и усиления защиты потерпевших. Вена 2000 г. (Решения: Решение об активизации усилий ОБСЕ по борьбе c торгов- лей людьми) Совет министров, (…) признавая, что торговля людьми представляет собой все более серьезную про- блему, и, будучи убежден в том, что Организации следует активизировать свои усилия по борьбе с торговлей людьми во всем регионе ОБСЕ, в том числе во время конфликтов и в постконфликтных ситуациях, и внести свой вклад в направлен- ные на защиту прав человека национальные, региональные и международные уси- лия по противодействию такой торговле, а также в борьбу с транснациональной организованной преступностью, 1. Вновь заявляет, что торговля людьми является вопиющим нарушением прав человека и серьезным преступлением, которое требует более всесторонних и ско- ординированных ответных мер со стороны государств-участников и междуна- родного сообщества, а также применения странами, в частности странами проис- хождения, транзита и назначения, более согласованного и основанного на лучшем взаимодействии подхода;

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2. Приветствует принятие Генеральной ассамблеей Организации Объединен- ных Наций Протокола о предупреждении и пресечении торговли людьми, осо- бенно женщинами и детьми, и наказании за нее, дополняющего Конвенцию Орга- низации Объединенных Наций против транснациональной организованной пре- ступности, а также содержащееся в нем определение термина “торговля людьми” и призывает все государства-участники подписать и ратифицировать Протокол Организации Объединенных Наций, а также Факультативный протокол о тор- говле детьми, детской проституции и детской порнографии к Конвенции о пра- вах ребенка; 3. Признает главную ответственность государств-участников в том, что касается борьбы с торговлей людьми на основе комплексного и скоординированного под- хода, включающего предупреждение торговли, защиту потерпевших и судебное преследование торговцев и их сообщников; 4. Подчеркивает роль национальных парламентов в принятии, среди прочего, законов, необходимых для борьбы с торговлей людьми, и приветствует статьи 106 и 107 Бухарестской декларации Парламентской ассамблеи, посвященные тор- говле людьми; 5. Постановляет укрепить деятельность ОБСЕ по борьбе с торговлей людьми и подчеркивает необходимость интенсифицировать сотрудничество между раз- личными институтами ОБСЕ, а также между ОБСЕ и другими международными организациями, такими, как соответствующие учреждения Организации Объ- единенных Наций, Международная организация по вопросам миграции, Совет Европы, Европейский союз и Интерпол; 6. Поддерживает работу Целевой группы по проблеме торговли людьми в рам- ках Пакта о стабильности и призывает, в частности, правительства стран соот- ветствующего региона принимать активное участие в деятельности этой Целевой группы; (…) 8. Обязуется повышать информированность обо всех аспектах проблемы торговли людьми, в частности, при содействии БДИПЧ, неправительственных организа- ций и других соответствующих институтов, путем организации в случае необхо- димости учебных программ для государственных служащих, включая сотрудни- ков правоохранительных, судебных, консульских и иммиграционных органов; 9. Берет на себя обязательство осуществлять необходимые меры, в том числе путем принятия и применения законодательства, для квалификации торговли людьми как уголовного преступления, включая установление соответствующих мер наказания, в целях обеспечения эффективного противодействия ей со сто- роны правоохранительных органов и судебного преследования за нее. В таком законодательстве должен учитываться правозащитный подход к проблеме тор- говли людьми и должны содержаться положения о защите прав человека при- менительно к ее жертвам, обеспечивающие, чтобы жертвы торговли людьми не

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подвергались преследованию лишь по той причине, что они стали объектом тор- говли; (…) 11. Приветствует назначение в соответствующих случаях представителей пра- вительств по проблеме торговли людьми в целях координации деятельности на национальном уровне и налаживания регионального и международного сотруд- ничества с предоставлением соответствующей контактной информации другим государствам-участникам; (…) Бухарест 2001 г. (Решения: Решение No. 6) Совет министров, вновь выражая свою приверженность борьбе против всех форм торговли людьми, затрагивающей все государства-участники, заявляя о своей приверженности развитию сотрудничества и взаимодействия между государствами-участниками, касающегося мер по борьбе с торговлей людьми и связанными с ней преступлениями, призывает государства-участники подписать и ратифицировать Конвенцию Орга- низации Объединенных Наций против транснациональной организованной пре- ступности и Протокол к ней о предупреждении и пресечении торговли людьми, особенно женщинами и детьми, и наказании за нее; (…) приветствует обмен информацией с целью наращивания усилий по расследова- нию, обеспечению правопорядка и предупреждению преступности; призывает государства-участники ускорить принятие необходимых мер во испол- нение обязательств, принятых ими на Венской встрече министров, включая пре- дупреждение торговли людьми, защиту ее жертв, а также преследование лиц, занимающихся такой торговлей, и их сообщников. Порту 2002 г. (Декларация о торговле людьми) I. Мы, члены Совета министров ОБСЕ, заявляем, что торговля людьми создает серьезную угрозу безопасности в регионе ОБСЕ и за его пределами. Мы заявляем, что торговля людьми и другие современные формы рабства пред- ставляют собой грубое попрание достоинства и прав человеческой личности. Мы сознаем, что торговля людьми является серьезным и быстрорастущим видом транснациональной организованной преступности, приносящим огромные доходы преступным сетям, которые могут быть замешаны и в таких преступных

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деяниях, как незаконный оборот наркотиков и оружия, а также контрабанда миг- рантов. Мы напоминаем и вновь заявляем о своей полной приверженности обязательс- твам ОБСЕ по борьбе с торговлей людьми (…) и выражаем решимость укреплять сотрудничество в противодействии торговле людьми в странах происхождения, транзита и назначения. (…) Мы заявляем, что ратификация и полное выполнение обоих этих докумен- тов [Конвенции Организации Объединенных Наций против транснациональ- ной организованной преступности и дополняющий ее Протокол о предупрежде- нии и пресечении торговли людьми, особенно женщинами и детьми, и наказании за нее] послужат укреплению международной и национальной правовой базы и правоприменительного потенциала для борьбы с торговлей людьми. Мы насто- ятельно рекомендуем государствам рассмотреть возможность одновременной с этим ратификации и полного выполнения Протокола против незаконного ввоза мигрантов по суше, морю и воздуху, также дополняющего вышеупомянутую кон- венцию. (…) II. Мы признаем, что необходимо направлять усилия на коренные причины неза- конной торговли и уменьшать социально-экономическое неравенство и неблаго- получие, которые также подталкивают к нелегальной миграции и могут исполь- зоваться в корыстных целях организованными преступными сообществами. Мы признаем также необходимость борьбы с коррупцией, облегчающей деятельность таких сообществ. (…) Мы признаем, что неотъемлемой составляющей торговли людьми в странах назначения является спрос на услуги лиц, ввозимых с целью их сексуальной экс- плуатации, привлечения к принудительному труду, обращения в рабство или применения к ним иной практики, аналогичной рабству. Мы настоятельно при- зываем страны назначения принимать эффективные меры в отношении такого спроса, которые должны быть одним из ключевых элементов их стратегии эффек- тивного недопущения торговли людьми и борьбы с нею, а также проявлять абсо- лютную нетерпимость по отношению к сексуальной эксплуатации, рабству и всем формам эксплуатации принудительного труда, независимо от его характера. Мы глубоко обеспокоены сообщениями о причастности некоторых членов мис- сий международных организаций к деятельности, связанной с торговлей людьми, особенно в постконфликтных странах. Мы вновь подчеркиваем важность Реше- ния No. 426 Постоянного совета от 12 июля 2001 года о борьбе с торговлей людьми и поощряем принятие и осуществление соответствующих мер, таких как Кодекс поведения для сотрудников миссий ОБСЕ. Мы не будем мириться с причастнос- тью международных сотрудников к любой противозаконной деятельности, сти- мулированием ими этой преступной торговли или нарушением ими указан-

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ного Кодекса поведения. Мы обязуемся принимать все практически осуществи- мые меры для того, чтобы международные сотрудники несли ответственность за подобные действия перед властями своих стран, а в соответствующих случаях — и перед местными властями. Мы выражаем озабоченность ростом торговли несовершеннолетними и, призна- вая особые потребности детей, поддерживаем расширение исследований и обмена информацией относительно торговли детьми, а также, исходя из того, что во всех действиях в отношении детей первоочередное внимание уделяется наилучшему обеспечению интересов ребенка, призываем к разработке специальных мер по защите несовершеннолетних, ставших жертвами торговли, от дальнейшей экс- плуатации, с соответствующей заботой об их психологическом и физическом бла- гополучии. Мы будем стремиться к принятию адекватных мер для недопущения торговли людьми в наших странах, в частности в форме целевых кампаний по повышению осведомленности и просветительной работы в странах происхождения и тран- зита, рассчитанных в особенности на молодежь и другие уязвимые группы, и будем прилагать усилия по развертыванию соответствующих кампаний в стра- нах назначения и по организации подготовки для соответствующих должност- ных лиц и государственных служащих по тематике правоохранительной работы, пограничного контроля, уголовного правосудия и социальных услуг, а также будем рекомендовать всестороннее сотрудничество с НПО в этой области. (…) Мы вновь отмечаем потребность в национальных стратегиях для объединения усилий, направленных на борьбу с торговлей людьми, и улучшения координации действий национальных, международных и региональных организаций в этой области. Удовлетворить эту потребность можно было бы посредством таких мер, как назначение межминистерских органов и национальных координаторов либо, где это целесообразно, других соответствующих органов или механизмов. III. Мы соглашаемся, на основе подхода, охватывающего различные измерения, активизировать сотрудничество между соответствующими структурами и инс- титутами ОБСЕ, а также между ОБСЕ и другими соответствующими междуна- родными организациями и субъектами, включая Организацию Объединенных Наций и ее специализированные учреждения, Совет Европы, Европейский союз и Международную организацию по вопросам миграции, и поручаем Постоянному совету изучить вопрос о том, как лучше всего обеспечить такое сотрудничество в целях борьбы с торговлей людьми. (…)

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Маастрихт 2003 г. (Решения: Решение No. 2/03: Борьба с торговлей людьми) Совет министров, (…) 1. Постановляет одобрить План действий ОБСЕ по борьбе с торговлей людьми, прилагаемый к настоящему Решению; и 2. Учреждает под эгидой Постоянного совета механизм ОБСЕ для оказания госу- дарствам-участникам помощи в борьбе с торговлей людьми. Этот механизм будет состоять из двух компонентов, дополняющих деятельность друг друга: назначае- мого Действующим председательством специального представителя и специаль- ной группы в Секретариате ОБСЕ. (…) Маастрихт 2003 г. (Решения: Приложение к Решению No. 2/03: Борьба с торгов- лей людьми; План действий ОБСЕ по борьбе с торговлей людьми) IV. Предупреждение торговли людьми (…) 1. Сбор данных и исследования 1.1 Осуществлять сбор данных отдельно о женщинах, мужчинах и детях, являю- щихся жертвами торговли людьми, а также совершенствовать исследовательскую и аналитическую работу по таким темам, как характер и масштабы ТЛ и исполь- зуемые организованными преступными группами механизмы торговли людьми и эксплуатации, в целях разработки эффективных и целенаправленных мер по предупреждению торговли людьми. Содействовать расширению исследований и обмена информацией по проблеме торговли детьми. 1.2 Выявлять наиболее уязвимые группы населения и разрабатывать специально для них информационно-просветительские кампании. 1.3 Проводить более углубленный анализ коренных причин ТЛ, факторов спроса и предложения в такой торговле, ее сетей и экономических последствий, а также ее связи с нелегальной миграцией. 2. Меры пограничного контроля 2.1 Без ущерба для международных обязательств в отношении свободного пере- движения людей усиливать, насколько это возможно, меры пограничного кон- троля в той степени, в какой это может потребоваться для предупреждения и выявления ТЛ. 2.2 Принимать законодательные или другие надлежащие меры для предупрежде- ния, в максимально возможной степени, использования транспортных средств, эксплуатируемых коммерческими перевозчиками, при совершении преступле- ний, которые определены в положениях о борьбе с торговлей людьми.

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2.3 В соответствующих случаях и без ущерба для применимых международных конвенций обязывать коммерческих перевозчиков, в том числе любую транспор- тную компанию или же владельца или оператора любых транспортных средств, удостоверяться в том, что все пассажиры имеют действительные документы на въезд/выезд. В соответствии с внутренним законодательством принимать необ- ходимые меры, с тем, чтобы предусмотреть санкции за нарушения. 3. Экономическая и социальная политика, направленная на устранение коренных причин ТЛ 3.1 В странах происхождения: • считать приоритетными задачами содействие социально-экономической и политической стабильности и сокращение как миграции, вызываемой глубокой нищетой, так и факторов "предложения" в торговле людьми. Политика, направ- ленная на достижение этих целей, должна также способствовать экономичес- кому развитию и преодолению социальной отчужденности; • повышать доступность общего и профессионально-технического образования для детей и расширять охват детей, особенно девочек и представителей мень- шинств, школьным образованием; • расширять для женщин возможности трудоустройства путем содействия улуч- шению коммерческих перспектив малых и средних предприятий (МСП). Орга- низовывать курсы подготовки кадров для МСП, предназначенные в первую оче- редь для лиц, входящих в "группы риска". 3.2 В странах назначения: • принимать меры по уменьшению "незаметности эксплуатации". Достижению этой цели будет весьма способствовать разработка межведомственной про- граммы мониторинга, административного контроля и сбора оперативной информации в отношении рынков труда и, где это применимо, секс-индустрии; • рассматривать возможность осуществления правительствами либерализации рынков труда в своих странах с целью увеличения возможностей трудоустройс- тва для работников самых различных уровней квалификации; • принимать меры по решению проблемы незащищенного, неофициального и зачастую незаконного труда с целью установления баланса между спросом на дешевую рабочую силу и возможностями законной миграции; • бороться с подпольной экономической деятельностью, подрывающей эконо- мику и способствующей росту торговли людьми. 3.3 Как в странах происхождения, так и в странах назначения: • принимать меры для повышения уровней социальной защищенности и созда- ния равных для всех возможностей трудоустройства; • принимать надлежащие меры для устранения дискриминации женщин при найме на работу, имея в виду обеспечить на основе гендерного равенства право

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на равную оплату за равный труд и право на равенство возможностей в области трудоустройства; • противодействовать всем формам дискриминации меньшинств; • разрабатывать программы, позволяющие людям выбирать различные способы зарабатывать себе на жизнь и включающие начальное образование, обучение грамоте, развитие коммуникативных и иных навыков и сокращение препятс- твий для предпринимательской деятельности; • поощрять более внимательное отношение к гендерным вопросам и пропаганди- ровать равноправные и взаимоуважительные отношения между полами, предо- твращая тем самым насилие в отношении женщин; • обеспечивать проведение политики, предусматривающей предоставление жен- щинам равного доступа к экономическим и финансовым ресурсам и равного права распоряжаться ими; • содействовать развитию гибких механизмов финансирования и расширению возможностей получения кредита, включая микроссуды под низкий процент; • содействовать утверждению надлежащего управления и транспарентности в экономических сделках; • принимать или совершенствовать меры в области законодательства, образова- ния, культуры или в социальной области, а также, где это применимо, в сфере уголовного права, в том числе путем двустороннего и многостороннего сотруд- ничества, направленные на противодействие спросу, порождающему эксплуата- цию людей, особенно женщин и детей, во всех ее формах и ведущего к торговле людьми. 4. Повышение осведомленности 4.1 Проводить совместно с гражданским обществом и НПО информационные кампании для повышения осведомленности общественности о торговле людьми в различных ее формах, в том числе о методах, применяемых при такой торговле, и опасностях, которым подвергаются ее жертвы. 4.2 Повышать осведомленность о торговле людьми среди работников иммигра- ционных органов, а также консульского и дипломатического персонала, с тем, чтобы полученные знания могли использоваться ими в их повседневных контак- тах с потенциальными жертвами. 4.3 Поощрять распространение посольствами государств — в том числе через НПО — информации о соответствующем национальном законодательстве в таких областях, как семейное право, законы о труде и иммиграционное законода- тельство, представляющем интерес для потенциальных мигрантов. 4.4 Целенаправленно повышать осведомленность других соответствующих соци- альных групп, включая лиц, ответственных за выработку политики, сотрудни- ков правоохранительных органов и других соответствующих специалистов,

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таких, как медицинские, социальные работники и должностные лица, занимаю- щиеся вопросами трудоустройства, а также представителей частного сектора, о ТЛ в целях повышения их готовности надлежащим образом противодействовать этому явлению и укрепления их институционального потенциала для борьбы с ним. 4.5 Рекомендовать консульским и визовым отделам дипломатических представи- тельств использовать в своей работе с лицами, подвергающимися риску, печат- ные и иные материалы. 4.6 Повышать осведомленность работников СМИ. Освещение проблемы тор- говли людьми в средствах массовой информации должно включать четкое разъ- яснение сути этого явления и реалистичное изображение его жертв. Для макси- мально полного информирования общественности об этой проблеме и привлече- ния к ней как можно большего внимания кампании по борьбе с торговлей людьми следует проводить с участием профессиональных журналистов. 4.7 Проводить кампании по повышению осведомленности, нацеленные также на самые уязвимые группы населения, включая лиц, принадлежащих к националь- ным меньшинствам, детей, мигрантов и внутренне перемещенных лиц (ВПЛ). 4.8 Охватывать кампаниями по повышению осведомленности малые города и села, угроза для населения которых может быть особенно высокой. 4.9 Вести работу в школах и высших учебных заведениях, а также непосредс- твенно с семьями, чтобы донести информацию до молодежи и повысить ее осве- домленность о торговле людьми. 4.10 Обращать внимание, в том числе с помощью средств массовой информации, на необходимость сокращения спроса на услуги лиц, ввозимых с целью их сексу- альной эксплуатации, привлечения к принудительному труду, обращения в рабс- тво и применения к ним иной практики, аналогичной рабству, и в этой связи вос- питывать абсолютную нетерпимость к торговле людьми во всех ее формах. 4.11 Создавать в странах происхождения, транзита и назначения “телефоны дове- рия”, о которых должно быть широко известно и которые должны выполнять три функции: служить независимым источником консультаций и рекоменда- ций потенциальным жертвам торговли людьми, обдумывающим предложения о выезде за рубеж с целью трудоустройства или в иных целях, быть первым кон- тактным телефоном, с помощью которого жертвы ТЛ получали бы доступ к меха- низму передачи и рассмотрения дел, а также облегчать подачу анонимных сигна- лов о случаях ТЛ и подозрениях на такие случаи. 5. Законодательные меры 5.1 Принимать или пересматривать законы, административные механизмы и процедуры, регулирующие лицензирование и осуществление видов коммерчес- кой деятельности, которые, согласно оперативным данным, могут иметь отно- шение к торговле людьми — таких, как бюро по трудоустройству, туристические

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фирмы, агентства по найму нянь и помощниц по хозяйству, агентства по усынов- лению или международному подбору брачных партнеров, а также гостиницы и бюро эскорт-услуг. 5.2 Обеспечивать, чтобы меры, принимаемые с целью предупреждения торговли людьми и борьбы с ней, не наносили ущерба правам и достоинству личности, включая свободу передвижения. (…) VI. Механизмы осуществления дальнейших шагов и координации действий Наряду с наблюдением за выполнением государствами-участниками принятых в ОБСЕ обязательств с использованием существующих механизмов ОБСЕ, вклю- чая ежегодное Совещание по рассмотрению выполнения, посвященное челове- ческому измерению, конференции по обзору и соответствующие мероприятия в области человеческого измерения, Постоянный совет рекомендует следующие действия на национальном уровне: 1. Рассмотреть вопрос о назначении национальных докладчиков или создании иных механизмов наблюдения за деятельностью государственных учреждений, направленной против торговли людьми, и за выполнением требований нацио- нального законодательства. 2. Рассмотреть вопрос о создании комиссий (целевых групп) по борьбе с торгов- лей людьми или аналогичных органов, ответственных за координацию действий государственных учреждений и НПО внутри страны и за выработку мер по пре- дупреждению ТЛ, наказанию виновных в ТЛ и защите ее жертв. 3. Совершенствовать сотрудничество между государственными институтами и национальными НПО, занимающимися оказанием защиты и помощи жертвам ТЛ, борьбой с насилием в отношении женщин и детей, обеспечением гендерного равенства и повышением осведомленности в вопросах прав человека. София 2004 г. (Решения: Решение No. 13/04: Особые потребности детей, являю- щихся жертвами торговли людьми, в защите и помощи) Совет министров, (…) ссылаясь на принципы, касающиеся защиты и уважения прав человека, которые провозглашены в Конвенции Организации Объединенных Наций 1998 года о правах ребенка и относящемся к ней Факультативном протоколе 2000 года о тор- говле детьми, детской проституции и детской порнографии, Протоколе Органи- зации Объединенных Наций 2000 года о предупреждении и пресечении торговли людьми, особенно женщинами и детьми, и наказании за нее, дополняющем Кон- венцию Организации Объединенных Наций против транснациональной органи- зованной преступности, а также в гаагской Конвенции 1993 года о защите детей и сотрудничестве в области международного усыновления,

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сознавая, что государства-участники несут основную ответственность за борьбу с торговлей людьми на базе комплексного скоординированного подхода, включа- ющего предотвращение такой торговли, защиту жертв и уголовное преследование лиц, занимающихся такой торговлей, и их сообщников, вновь подтверждая, что общие принципы, касающиеся, в частности, наилучшего обеспечения интересов ребенка, недискриминации, вовлеченности, а также обес- печения выживания и развития, составляют основу всей деятельности, касаю- щейся детей, преисполненный решимости и впредь наращивать усилия ОБСЕ по борьбе с тор- говлей людьми и продолжать активно выполнять План действий по борьбе с тор- говлей людьми, а также обеспечивать дальнейшее оказание Организацией под- держки государствам-участникам по их просьбе в осуществлении ими на нацио- нальном уровне своих соответствующих мероприятий в этой области, принимая во внимание, в частности, изложенные в Плане действий ОБСЕ по борьбе с торговлей людьми рекомендации о том, чтобы ОБСЕ уделяла особое внимание проблеме торговле детьми, а также сознавая уязвимость несопровож- даемых и разлученных с семьями детей, сознавая, что государства-участники твердо намерены защищать детей от всех видов насилия, включая их сексуальную эксплуатацию, и подчеркивая необходи- мость уважения особых потребностей детей в защите и помощи, а также принцип предоставления ребенку возможности высказать свое мнение, подчеркивая, что меры по борьбе с торговлей детьми должны учитывать гендер- ные аспекты и носить недискриминационный характер, подчеркивая, что при принятии решений, касающихся детей — жертв торговли, главным соображением должно быть наилучшее обеспечение интересов ребенка, в частности, с помощью представителей, отстаивающих в необходимых случаях интересы таких детей, сознавая необходимость создания эффективной основы для оказания детям помощи и защиты, а также проведения информационно-пропагандистских мероприятий в целях противодействия спросу, поощряющему все формы эксплу- атации людей, особенно женщин и детей, и повышающему вероятность превра- щения детей в объект торговли, 1. Постановляет наращивать усилия ОБСЕ, направленные на предотвращение торговли детьми, оказание защиты и помощи детям, являющимся жертвами тор- говли, и уголовное преследование торговцев детьми, принимая во внимание План действий ОБСЕ по борьбе с торговлей людьми; 2. Считает желательным, чтобы государства-участники укрепляли соответству- ющие государственные органы, занимающиеся проблемами детей; считает также желательным, чтобы государства-участники при необходимости активизировали принятие мер во исполнение соответствующих рекомендаций, адресованных им

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в Плане действий ОБСЕ по борьбе с торговлей людьми, с целью противодействия факторам, повышающим вероятность превращения детей в объект торговли, — в частности таким, как: дискриминация, в том числе по признаку расы, пола, рели- гии или убеждений, национального или социального происхождения, сословного или иного положения; эксплуатация, как она определена в Плане действий ОБСЕ по борьбе с торговлей людьми; бедность, низкий уровень образования и отрыв от привычного места проживания; 3. Постановляет усилить работу по противодействию спросу, включая борьбу с детским секс-туризмом. В этой связи он также предлагает государствам-участни- кам рассмотреть, среди прочего, вопрос о разработке правовых мер, предусмат- ривающих уголовное преследование своих граждан за сексуальную эксплуатацию детей, в том числе если такая эксплуатация имела место в другой стране; (…)

6.2.2 Расследование, правоохранительная деятельность, судебное преследование Стамбул 1999 г. (Хартия европейской безопасности: III. Наш общий ответ) 24. Мы будем принимать меры по (…) прекращению (…) всех форм торговли людьми. Для предотвращения подобных преступлений мы будем, среди про- чего, содействовать принятию или укреплению законодательства для привлече- ния виновных в таких действиях к ответственности и усиления защиты потер- певших. (…) Вена 2000 г. (Решения: Решение об активизации усилий ОБСЕ по борьбе c торгов- лей людьми) Совет министров, (…) 3. Признает главную ответственность государств-участников в том, что касается борьбы с торговлей людьми на основе комплексного и скоординированного под- хода, включающего (…) судебное преследование торговцев и их сообщников; (…) 9. Берет на себя обязательство осуществлять необходимые меры, в том числе путем принятия и применения законодательства, для квалификации торговли людьми как уголовного преступления, включая установление соответствующих мер наказания, в целях обеспечения эффективного противодействия ей со сто- роны правоохранительных органов и судебного преследования за нее. В таком законодательстве должен учитываться правозащитный подход к проблеме тор- говли людьми и должны содержаться положения о защите прав человека при- менительно к ее жертвам, обеспечивающие, чтобы жертвы торговли людьми не подвергались преследованию лишь по той причине, что они стали объектом тор- говли; (…)

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Бухарест 2001 г. (Решения: Решение No. 6) Совет министров, (…) приветствует обмен информацией с целью наращивания усилий по расследова- нию, обеспечению правопорядка и предупреждению преступности; (…) Порту 2002 г. (Декларация о торговле людьми) II. (…) Мы призываем государства-участники усиливать международное сотрудничество по борьбе с транснациональной организованной преступностью, включая такие преступные деяния, как незаконный оборот наркотиков и оружия, а также кон- трабанду мигрантов. В таком сотрудничестве должны участвовать международ- ные правоохранительные органы, такие как Европол и Интерпол, а также Иници- атива по сотрудничеству в Юго-Восточной Европе (ИСЮВЕ), в целях расследова- ния случаев торговли людьми и преследования виновных в соответствии с внут- ренним законодательством и, где это применимо, международными обязательс- твами. (…) Маастрихт 2003 г. (Решения: Приложение к Решению No. 2/03: Борьба с торгов- лей людьми; План действий ОБСЕ по борьбе с торговлей людьми) III. Расследование, правоприменение и судебное преследование (…) Рекомендуемые действия на национальном уровне 1. Признание уголовно наказуемым деянием 1.1 Принимать такие законодательные и иные меры, какие могут потребоваться, с тем, чтобы признать в качестве уголовно наказуемых деяния, указанные в статье 3 Протокола ООН о предупреждении и пресечении торговли людьми, особенно женщинами и детьми, и наказании за нее, дополняющего Конвенцию ООН про- тив транснациональной организованной преступности. 1.2 Принимать такие законодательные и иные меры, какие могут потребоваться, с тем, чтобы признать в качестве уголовно наказуемых следующие деяния: • покушение на совершение данного уголовного преступления; • участие в совершении данного уголовного преступления в качестве сообщника; • организацию других лиц или руководство ими с целью совершения данного уго- ловного преступления.

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1.3 Принимать такие меры, какие могут потребоваться для установления ответс- твенности юридических лиц, помимо ответственности физических лиц, за пре- ступления, связанные с торговлей людьми. При условии соблюдения правовых принципов государства-участника ответственность юридических лиц может быть уголовной, гражданско-правовой и/или административной. 1.4 Принимать законодательные положения, которые предусматривают эффек- тивные и соразмерные меры уголовного наказания, включая тюремное заклю- чение, учитывающие серьезность данного преступления. Там, где это целесооб- разно, законодательство должно предусматривать дополнительные меры наказа- ния для лиц, признанных виновными в торговле людьми при отягчающих обсто- ятельствах, например, в случаях преступлений, связанных с торговлей детьми, или преступлений, совершенных государственными должностными лицами или при их соучастии. 1.5 Рассматривать возможность принятия законодательных положений, предус- матривающих конфискацию орудий торговли людьми и связанных с нею уголов- ных преступлений, а также доходов от них, с указанием, где это не противоре- чит национальному законодательству, что конфискованные доходы от торговли людьми будут использоваться на благо жертв этой торговли. Рассмотреть воп- рос об учреждении фонда компенсационных выплат жертвам торговли людьми и использовании конфискованных активов в качестве вспомогательного источника финансирования такого фонда. 1.6 Обеспечивать, чтобы торговля людьми, составляющие такую торговлю дейс- твия и связанные с нею преступления квалифицировались в национальном зако- нодательстве и договорах о выдаче как преступления, которые могут повлечь выдачу. 1.7 Принимать такие законодательные и иные меры для признания уголовно нака- зуемыми актов активной или пассивной коррупции среди публичных должност- ных лиц, как перечисленные в статьях 8 и 9 Конвенции ООН против транснацио- нальной организованной преступности. 1.8 Обеспечивать, чтобы в отношении жертв торговли людьми не возбуждались уголовные дела лишь на том непосредственном основании, что они стали объек- том такой торговли. 2. Правоохранительные меры 2.1 Применять в полном объеме предусмотренные законодательством меры по борьбе с торговлей людьми и связанные с ними меры. 2.2 Создавать специальные подразделения по борьбе с торговлей людьми, состо- ящие как из мужчин, так и из женщин, прошедших основательную подготовку в расследовании преступлений, связанных с посягательствами сексуального харак- тера, или преступлений, касающихся детей, с тем, чтобы способствовать повыше- нию компетентности, профессионализма и добросовестности работников.

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2.3 Наращивать потенциал в области борьбы с коррупцией. 2.4 Разрабатывать программы взаимодействия полиции с местным населением: повышать уровень доверия между полицией и населением, с тем, чтобы, в част- ности, способствовать получению информации, касающейся торговли людьми, и стимулировать у потерпевших желание заявлять о преступлениях. 2.5 Расширять сотрудничество между следственными правоохранительными органами с целью установления возможно криминального, связанного с торгов- лей людьми происхождения подозрительных активов. 2.6 Обеспечивать не только ресурсы и подготовку кадров для развития основан- ной на сборе оперативной информации полицейской деятельности по обузданию и анализу преступности, а также по обработке и анализу криминалистических данных, но и другие высокопрофессиональные навыки и современную технику, необходимые правоохранительным органам для выполнения их задач по борьбе с торговлей людьми. 2.7 Побуждать следователей и прокуроров к тому, чтобы в ходе следствия и судеб- ного преследования они не полагались только и исключительно на свидетельские показания. Изучать альтернативные стратегии расследования, исключающие необходимость обязательной дачи потерпевшими показаний в суде. 2.8 Принимать практически осуществимые меры с целью обеспечить, чтобы в отношении сотрудников миссий ОБСЕ, нарушающих своим поведением Кодекс поведения сотрудников миссий ОБСЕ и другие положения, применялись установ- ленные санкции, включая, в надлежащих случаях, дисциплинарные процедуры и уголовное преследование. 2.9 Уделять первоочередное внимание проблеме коррупции в местных правоох- ранительных органах и обеспечивать применение надлежащих дисциплинарных процедур и уголовного преследования в отношении правоохранительных орга- нов, уличенных в коррупции, связанной с торговлей людьми. 3. Сотрудничество правоохранительных органов и обмен информацией между государствами-участниками 3.1 Тесно сотрудничать друг с другом, действуя сообразно своим внутренним пра- вовым и административным системам, в целях повышения эффективности пра- воохранительных мер по борьбе с преступлениями, охватываемыми настоящим Планом действий. Развивать аналогичное сотрудничество и координацию дейс- твий между правоохранительными органами внутри государств. 3.2 Принимать эффективные меры, в частности, с целью: • расширения и, где это необходимо, создания каналов связи между государс- твами-участниками; • сотрудничества в расследовании преступлений, охватываемых настоящим Пла- ном действий;

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• предоставления, в надлежащих случаях, предметов или доказательств, необхо- димых для целей анализа или расследования; • содействия эффективной координации действий между их компетентными орга- нами, ведомствами и службами и поощрения обмена сотрудниками и другими экспертами, включая, при условии заключения заинтересованными государс- твами-участниками двусторонних соглашений или договоренностей, направле- ние сотрудников по связям; • обмена информацией о конкретных средствах и методах, применяемых орга- низованными преступными группами, включая, где это применимо, сведения о маршрутах и перевозках, а также об использовании ложных имен, измененных или поддельных документов либо других средств сокрытия их деятельности; • координации административных и иных мер, признанных целесообразными для заблаговременного выявления преступлений, охватываемых настоящим Планом действий. 3.3 Заключать соглашения о двустороннем и многостороннем сотрудничестве между правоохранительными органами для облегчения обмена информацией. 3.4 Предпринимать усилия с целью разработки единых стандартов, касающихся сбора статистических данных. 4. Оказание помощи и защиты свидетелям и потерпевшим в рамках системы уго- ловного правосудия 4.1 Принимать, в пределах имеющихся у государств-участников возможностей, надлежащие меры, включая законодательные, для обеспечения эффективной защиты от вероятной мести или запугивания в отношении участвующих в уго- ловном производстве свидетелей, которые дают показания в связи с преступле- ниями, охватываемыми настоящим Планом действий, и, в надлежащих случаях, в отношении их родственников и других близких им лиц. 4.2 Повышать степень осознания правоохранительными органами и должност- ными лицами своей ответственности за обеспечение безопасности жертв ТЛ и их благополучия в ближайшей перспективе. 4.3 Обеспечивать защиту сведений и право потерпевших на неприкосновенность частной жизни, в том числе в процессе сбора сведений и их анализа. 4.4 Облегчать участие потерпевших в качестве свидетелей в расследованиях и судебных слушаниях или в других мероприятиях в рамках уголовного производс- тва путем предоставления им возможности сменить место жительства в качестве одной из мер защиты свидетелей. 4.5 Давать потерпевшим юридические консультации в процессе принятия ими решения о том, выступать ли с показаниями в суде. 4.6 Разрешать НПО оказывать потерпевшим поддержку в ходе судебных слуша- ний, если это не противоречит национальному законодательству.

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5. Подготовка кадров 5.1 Организовывать или совершенствовать подготовку должностных лиц погра- ничных служб, должностных лиц правоохранительных органов, судей, прокуро- ров, должностных лиц иммиграционных и иных соответствующих служб по всем аспектам проблемы торговли людьми. 5.2 При осуществлении программ такой подготовки уделять внимание вопросам прав человека, проблемам, особо затрагивающим детей, а также гендерной про- блематике, и поощрять сотрудничество с неправительственными организаци- ями, другими соответствующими организациями и иными элементами граждан- ского общества. 6. Меры пограничного контроля 6.1 Рассматривать возможность принятия мер, которые позволяют, в соответс- твии с внутренним законодательством, отказывать во въезде, аннулировать визы или, возможно, временно задерживать лиц, причастных к совершению преступ- лений, как они определены в действующем законодательстве. 6.2 Рассматривать возможность укрепления сотрудничества между органами пог- раничного контроля, в том числе путем создания и поддержания прямых кана- лов связи. 7. Надежность документов и контроль за ними 7.1 Принимать, в пределах имеющихся возможностей, такие меры, какие могут потребоваться для обеспечения такого качества выдаваемых государствами- участниками или от их имени документов на въезд/выезд или удостоверений личности, которое в максимальной степени затрудняло бы их неправомерное использование, подделку или противозаконное изменение, воспроизведение или выдачу. 8. Законность и действительность документов 8.1 По просьбе другого государства-участника и в соответствии со своим внут- ренним законодательством проводить в течение разумного срока проверку закон- ности и действительности выданных или якобы выданных от его имени докумен- тов на въезд/выезд или удостоверений личности в тех случаях, когда есть весомые основания подозревать, что они используются для целей торговли людьми. София 2004 г. (Решения: Решение No. 13/04: Особые потребности детей, являю- щихся жертвами торговли людьми, в защите и помощи) Совет министров, (…) 1. Постановляет наращивать усилия ОБСЕ, направленные на предотвращение торговли детьми (…) и уголовное преследование торговцев детьми (…) (…)

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3. Постановляет усилить работу по противодействию спросу, включая борьбу с детским секс-туризмом. В этой связи он также предлагает государствам-участни- кам рассмотреть, среди прочего, вопрос о разработке правовых мер, предусмат- ривающих уголовное преследование своих граждан за сексуальную эксплуатацию детей, в том числе если такая эксплуатация имела место в другой стране; (…)

6.2.3 Защита жертв и оказание им помощи Стамбул 1999 г. (Хартия европейской безопасности: III. Наш общий ответ) 24. Мы будем принимать меры по (…) прекращению насилия в отношении жен- щин и детей, а также сексуальной эксплуатации и всех форм торговли людьми. Для предотвращения подобных преступлений мы будем, среди прочего, содейс- твовать принятию или укреплению законодательства для привлечения виновных в таких действиях к ответственности и усиления защиты потерпевших. Вена 2000 г. (Решения: Решение об активизации усилий ОБСЕ по борьбе c торгов- лей людьми) Совет министров, (…) 3. Признает главную ответственность государств-участников в том, что касается борьбы с торговлей людьми на основе комплексного и скоординированного под- хода, включающего (…) защиту потерпевших (…) (…) 9. Берет на себя обязательство осуществлять необходимые меры, в том числе путем принятия и применения законодательства, для квалификации торговли людьми как уголовного преступления, включая установление соответствующих мер наказания, в целях обеспечения эффективного противодействия ей со сто- роны правоохранительных органов и судебного преследования за нее. В таком законодательстве должен учитываться правозащитный подход к проблеме тор- говли людьми и должны содержаться положения о защите прав человека при- менительно к ее жертвам, обеспечивающие, чтобы жертвы торговли людьми не подвергались преследованию лишь по той причине, что они стали объектом тор- говли; 10. Рассмотрит вопрос о принятии законодательных или других соответствую- щих мер, таких, как создание приютов, которые позволяли бы жертвам торговли людьми в соответствующих случаях оставаться на их территории на временной или постоянной основе; об установлении соответствующих процедур репатриа- ции жертв торговли людьми с должным учетом их безопасности, включая выдачу документов; а также о выработке политики по вопросам обеспечения таких жертв социально-экономическими льготами, их реабилитации и социальной реинтег- рации;

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(…) Порту 2002 г. (Декларация о торговле людьми) Мы будем стремиться оказывать жертвам торговли людьми, особенно женщи- нам и детям, помощь и защиту и в этих целях будем создавать, когда это целе- сообразно, эффективные и общедоступные национальные механизмы передачи и рассмотрения дел, обеспечивающие, чтобы жертвы торговли людьми не подвер- гались преследованию лишь по той причине, что они стали объектом торговли. Достоинство и человеческие права жертв должны уважаться при всех обстоя- тельствах. (…) Мы сознаем, что более интенсивное сотрудничество между соответствующими участниками в странах происхождения, транзита и назначения играет важней- шую роль в программах возвращения жертв торговли людьми и облегчает их реинтеграцию. Поэтому мы поощряем дальнейшее развитие такого сотрудничес- тва всеми организациями, в том числе НПО, оказывающими помощь жертвам. Мы рассмотрим вопрос о принятии законодательных или других мер, которые позволяли бы жертвам торговли людьми в соответствующих случаях оставаться на нашей территории на временной или постоянной основе, а также об учете соображений гуманности и сострадания. Маастрихт 2003 г. (Решения: Приложение к Решению No. 2/03: Борьба с торгов- лей людьми; План действий ОБСЕ по борьбе с торговлей людьми) V. Защита и помощь (…) 1. Сбор данных и исследования 1.1 Осуществлять сбор данных путем обмена и анализа информации о лучшей практике и иных сведений, касающихся оказания эффективной защиты и помощи жертвам торговли людьми в государствах-участниках ОБСЕ. 2. Законодательные меры 2.1 Рассмотреть вопрос о принятии законодательства, создающего правовую основу для оказания помощи и защиты жертвам ТЛ, особенно в ходе следствия и судебного разбирательства. 2.2 Ратифицировать или присоединиться к Протоколу ООН о предотвращении и пресечении торговли людьми, особенно женщинами и детьми, и наказании за нее, дополняющему Конвенцию ООН против транснациональной организованной преступности, и обеспечить его выполнение в полном объеме. 3. Национальные механизмы передачи и рассмотрения дел (НМПР)

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3.1 Учредить национальные механизмы передачи и рассмотрения дел путем созда- ния схемы сотрудничества, в рамках которой государства-участники будут выпол- нять свои обязательства по защите и обеспечению прав жертв ТЛ на основе коор- динации действий и в стратегическом партнерстве с гражданским обществом и другими участниками работы в этой области. (Подготавливаемый БДИПЧ Сбор- ник указаний и принципов, касающихся разработки и внедрения национальных механизмов передачи и рассмотрения дел, может служить полезным источником рекомендаций и информации относительно роли НМПР в оказании помощи и защиты жертвам ТЛ.) 3.2 Сформулировать руководящие указания, облегчающие точное выявление жертв ТЛ и надлежащее обращение с ними, основанное на уважении взглядов и достоинства соответствующих лиц. 3.3 Объединить усилия правоохранительных органов, включая подразделения, специально созданные для борьбы с торговлей людьми, а также полицию на мес- тном уровне, должностных лиц миграционных и пограничных служб, структур по оказанию социальной защиты, медицинских учреждений, а также НПО и дру- гих институтов гражданского общества как самых важных участников, которые должны быть вовлечены в работу НМПР. 3.4 Создать соответствующие механизмы для согласования помощи жертвам с деятельностью следственных органов и прокуратуры. 3.5 Привлекать особое внимание к необходимости усиления сотрудничества между полицией и НПО в выявлении, информировании и защите жертв ТЛ. 3.6 Увязывать работу НМПР с деятельностью межминистерских органов, нацио- нальных координаторов, НПО и других соответствующих национальных инсти- тутов в целях формирования межсекторальной и междисциплинарной группы, способной разрабатывать политику борьбы с торговлей людьми и отслеживать ее проведение. 4. Приюты 4.1 Создать при государственных органах, НПО или других институтах граждан- ского общества приюты для жертв торговли людьми; в этих приютах им должны быть обеспечены безопасность, возможность получения независимых рекоменда- ций и консультаций на известном им языке, первая медицинская помощь, а также возможность использовать время для размышлений после пережитой травмы. Приюты могут создаваться на базе уже существующих учреждений, таких, как кризисные центры для женщин. 4.2 Предоставлять доступ в приюты всем жертвам торговли людьми, независимо от их готовности сотрудничать с властями при проведении расследования.

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4.3 Уделять особое внимание обеспечению безопасности персонала таких при- ютов, конфиденциальности получаемой информации, а также безопасности жертв ТЛ и неприкосновенности их частной жизни. 4.4 Использовать приюты для предоставления жертвам ТЛ возможностей для такого обучения, которое в дальнейшем облегчит им реинтеграцию, трудоуст- ройство и обретение самостоятельности, а также повышать их социальную кон- курентоспособность после пережитой травмы. 5. Выдача документов 5.1 При необходимости обеспечивать выдачу документов в качестве первого шага по установлению личности потерпевших и определению их статуса в стра- нах назначения, что позволяет избрать соответствующий случаю вариант даль- нейшего содействия, такой, как репатриация (предпочтительно добровольная), выдача временного или постоянного вида на жительство и/или легализация работы по найму. 5.2 Усиливать сотрудничество между правоохранительными органами в странах происхождения, транзита и назначения, а также ответственными должностными лицами всех учреждений, занимающихся восстановлением прав жертв ТЛ, вклю- чая сотрудников посольств и консульств государств-участников, в целях облегче- ния и ускорения проверки личных данных и во избежание необоснованных или неразумных задержек. 5.3 Информировать лиц, признанных жертвами ТЛ, об их праве доступа к дипло- матическим и консульским представителям страны своего гражданства. 6. Оказание социальной помощи 6.1 Разрабатывать программы социальной помощи и интеграции, включая юри- дические консультации на известном потерпевшему языке, медицинскую и пси- хологическую помощь и доступ к медицинскому обслуживанию — в приютах либо в других соответствующих учреждениях. 6.2 Рассмотреть, если это не противоречит национальному законодательству, возможность принятия юридических мер, позволяющих использовать конфиско- ванные активы в качестве дополнения к государственному финансированию про- грамм по удовлетворению потребностей жертв ТЛ и для выплаты жертвам ком- пенсации, соразмерной тяжести совершенного против них преступления. 7. Репатриация, реабилитация и реинтеграция 7.1 Оказывать жертвам ТЛ помощь в их предпочтительно добровольной репатри- ации в страну происхождения с должным учетом их безопасности и безопасности их семей и без необоснованных или неразумных задержек. 7.2 Обеспечивать соблюдение надлежащих процедур в ходе всех действий, связан- ных с возвращением и выдворением, при учете подхода, основанного на гуман- ности и сострадании.

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7.3 Рассматривать возможность содействия реабилитации и социальной реинтег- рации жертв ТЛ путем предоставления им социально-экономических льгот. 7.4 Акцентировать внимание СМИ на необходимости уважать неприкосновен- ность частной жизни, воздерживаясь от обнародования информации о личности жертв ТЛ и от публикации конфиденциальных сведений, которая может нанести ущерб безопасности жертв или отправлению правосудия в ходе уголовного про- изводства. 8. Предоставление времени на размышление и выдача временных или постоян- ных видов на жительство 8.1 Рассмотреть вопрос о введении практики предоставления потерпевшим достаточного времени на размышление для принятия решения о том, давать или не давать свидетельские показания. 8.2 Рассматривать на индивидуальной основе, если это целесообразно, вопрос о выдаче временных или постоянных видов на жительство, принимая во внимание такие факторы, как потенциальные угрозы безопасности жертв. 8.3 Рассматривать, если это целесообразно, вопрос о выдаче потерпевшим разре- шений на работу в период их пребывания в принимающей стране. 9. Обеспечение права просить о предоставлении убежища 9.1 Обеспечивать, чтобы законы, политика, программы и мероприятия по борьбе с торговлей людьми не ущемляли право всех лиц, включая жертв ТЛ, запраши- вать и получать убежище от преследования в соответствии с международно-пра- вовыми нормами, касающимися беженцев, в частности путем эффективного при- менения принципа невыдворения. 10. Защита детей 10.1 Обеспечивать, чтобы особые потребности детей и необходимость наилуч- шего обеспечения интересов ребенка в полной мере учитывались при принятии решений о предоставлении адекватного жилья, надлежащем образовании и попе- чении. В соответствующих случаях, при отсутствии прямой угрозы безопасности ребенка, предоставлять детям доступ к государственной системе образования. 10.2 Принимать решение о репатриации ребенка, ставшего жертвой ТЛ, только после учета всех конкретных обстоятельств дела и при наличии в стране проис- хождения семьи или специального учреждения, способных обеспечить безопас- ность, защиту, реабилитацию и реинтеграцию данного ребенка. 10.3 Учитывать положения, содержащиеся в изданном Верховным комиссаром ООН по делам беженцев руководстве по защите несопровождаемых несовершен- нолетних, при выработке политики, касающейся этой “группы риска”, — особенно в отношении тех, кто не имеет документов, удостоверяющих личность.

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10.4 Использовать двусторонние и/или региональные соглашения об основных принципах надлежащего приема несопровождаемых детей для объединения уси- лий по защите детей. 10.5 Ратифицировать Факультативный протокол о торговле детьми, детской про- ституции и детской порнографии к Конвенции о правах ребенка или присоеди- ниться к нему и обеспечить его осуществление в полном объеме. Действия институтов и органов ОБСЕ 11. Национальный механизм передачи и рассмотрения дел 11.1 Активизировать деятельность ОБСЕ, и особенно БДИПЧ, в целях оказания государствам-участникам по их просьбе помощи в создании НМПР. 11.2 Поручить группе ОБСЕ по стратегическим вопросам полицейской деятель- ности совместно с БДИПЧ дальнейшую разработку руководства или пособия по выявлению предполагаемых жертв и сбору доказательств ТЛ в целях оказания, по мере необходимости, помощи государствам-участникам. (…) 14. Подготовка кадров (…) 14.2 Поручить БДИПЧ сбор и распространение информации о мерах, учебных программах и материалах, уже существующих в государствах-участниках ОБСЕ. 15. Законодательные меры 15.1 Координируя свои действия с Управлением ООН по наркотикам и преступ- ности, Советом Европы и другими соответствующими участниками, БДИПЧ будет продолжать оказывать государствам-участникам по их просьбе помощь в приведении их национального законодательства в соответствие с международ- ными нормами и стандартами, прежде всего за счет поощрения гуманного и основанного на сострадании подхода к жертвам ТЛ. София 2004 г. (Решения: Решение No. 13/04: Особые потребности детей, являю- щихся жертвами людьми, в защите и помощи) Совет министров, (…) 1. Постановляет наращивать усилия ОБСЕ, направленные на предотвращение торговли детьми, оказание защиты и помощи детям, являющимся жертвами тор- говли (…)

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6.3 Предотвращение незаконной торговли наркотиками, оружием и других форм международной организованной преступности

См. также: á II. 6.2: Предотвращение торговли людьми á II. 6.4: Предотвращение терроризма

Париж 1990 г. (Новая эра демократии, мира и единства) Мы (…) будем совместно бороться с незаконным оборотом наркотиков. Хельсинки 1992 г. (Декларация встречи на высшем уровне) 27. Незаконный оборот наркотиков представляет опасность для стабильности наших общественных и демократических институтов. Мы будем совместными усилиями укреплять все виды двустороннего и многостороннего сотрудничества в борьбе против незаконного оборота наркотиков и других форм международной организованной преступности. Бухарест 2001 г. (Декларация Совета министров) 4. (…) Организованная преступность, незаконный оборот наркотиков и оружия и торговля людьми затрагивают безопасность, экономику и социальную струк- туру всех государств-участников. Совет министров поддерживает наращивание усилий и расширение международного сотрудничества в противостоянии этим вызовам и призывает государства-участники, еще не сделавшие этого, присоеди- ниться к Конвенции Организации Объединенных Наций против транснацио- нальной организованной преступности и ее протоколам. Порту 2002 г. (Декларация о торговле людьми) Мы призываем государства-участники усиливать международное сотрудничество по борьбе с транснациональной организованной преступностью, включая такие преступные деяния, как незаконный оборот наркотиков и оружия, а также конт- рабанду мигрантов. В таком сотрудничестве должны участвовать международные правоохранительные органы, такие как Европол и Интерпол, а также Инициатива по сотрудничеству в Юго-Восточной Европе (ИСЮВЕ) (…) Маастрихт 2003 г. (I. Стратегия ОБСЕ по противодействию угрозам безопасности и стабильности в XXI веке) 31. ОБСЕ усилит свою работу по борьбе с организованной преступностью. Важ- ным вкладом в нее были бы регулярные встречи полицейских экспертов из госу- дарств-участников ОБСЕ и представителей других соответствующих специали- зированных международных и региональных организаций. В частности, ОБСЕ будет уделять еще большее внимание растущей угрозе незаконного оборота. При- нят План действий ОБСЕ по борьбе с торговлей людьми. Документ ОБСЕ о ЛСО остается ключевым инструментом борьбы с незаконной торговлей ЛСО и его рас- пространением во всех ее аспектах. Деятельность по осуществлению этого доку-

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мента будет дополнительно усилена. ОБСЕ будет продолжать уже предпринимае- мые в сотрудничестве с ЮНОДК усилия по решению проблемы незаконного обо- рота наркотиков. Необходимо разработать эффективный и всеобъемлющий меж- дународный подход к этой проблеме. 32. Группа по стратегическим вопросам полицейской деятельности была учреж- дена для повышения способности государств-участников противодействовать угрозам, связанным с преступной деятельностью, и для содействия им в под- держании верховенства закона. Ее цель состоит в совершенствовании ключе- вых полицейских навыков, включая уважение прав человека и основных свобод. ОБСЕ будет по просьбе государств-участников уделять дополнительное внима- ние помощи властям, в том числе на местном уровне, в борьбе с преступностью и преступными сообществами и будет определять и развивать ключевые направ- ления полицейской деятельности, такие, как подготовка кадров и наращивание потенциала. 33. ОБСЕ активизирует свои усилия по решению таких проблем, как контрабанд- ный провоз мигрантов и нелегальная миграция. 34. Для эффективного предупреждения коррупции и борьбы с ней во всех ее фор- мах необходим всеобъемлющий, междисциплинарный подход. ОБСЕ в тесной координации с ЮНОДК и другими соответствующими международными органи- зациями и финансовыми учреждениями будет вносить вклад в сокращение масш- табов коррупции повсюду в регионе ОБСЕ. 35. Угрозы терроризма и организованной преступности часто взаимосвязаны, и будет продолжено изучение синергетических подходов к противодействию им. Трансграничное передвижение людей, ресурсов и оружия, а также незаконный оборот как источник финансирования и материально-технической поддержки играют возрастающую роль в террористической деятельности. ОБСЕ твердо наме- рена решать эти проблемы и укреплять свой потенциал содействия открытости и безопасности границ, в том числе путем разработки концепции ОБСЕ по вопро- сам безопасности границ и пограничного режима, в интересах более эффектив- ного наращивания потенциала и взаимовыгодного межгосударственного сотруд- ничества.

6.4 Предотвращение терроризма

6.4.1 Осуждение терроризма и обязательство бороться с ним Мадрид 1983 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) (…) Государства-участники осуждают терроризм, в том числе терроризм в междуна- родных отношениях, как ставящий под угрозу или уносящий жизни ни в чем не повинных людей или иным образом подвергающий опасности права человека и основные свободы, и подчеркивают необходимость принятия решительных

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мер по борьбе с ним. Они выражают свою решимость принимать эффективные меры по предотвращению и пресечению актов терроризма как на национальном уровне, так и посредством международного сотрудничества, включая соответс- твующие двусторонние и многосторонние соглашения, и соответственно расши- рять и укреплять взаимное сотрудничество в борьбе с такими актами. Они согла- шаются делать это в соответствии с Уставом Организации Объединенных Наций, Декларацией Организации Объединенных Наций о принципах международного права, касающихся дружественных отношений и сотрудничества между государс- твами, и хельсинкским Заключительным актом. (…) Государства-участники подтверждают, что они будут воздерживаться от оказания прямой или косвенной помощи террористической деятельности или подрывной или другой деятельности, направленной на насильственное свержение режима другого государства-участника. Соответственно они будут воздерживаться, в том числе, от финансирования, поощрения и подстрекательства любой такой деятель- ности или проявления терпимости к ней. Вена 1989 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) (8) Государства-участники безоговорочно осуждают как преступные все акты, методы и практику терроризма, где бы и кем бы они ни совершались, включая те, которые ставят под угрозу дружественные отношения между государствами и их безопасность, и соглашаются в том, что терроризм не может быть оправдан ни при каких обстоятельствах. (9) Они выражают свою решимость добиваться искоренения терроризма как на двусторонней основе, так и путем многостороннего сотрудничества, в осо- бенности на таких международных форумах, как Организация Объединенных Наций, Международная организация гражданской авиации и Международная морская организация, и согласно соответствующим положениям Заключитель- ного акта и мадридского Итогового документа. (10) Будучи убеждены в том, что меры на национальном уровне необходимо соче- тать с укреплением международного сотрудничества, государства-участники выражают свое намерение: (10.1) проводить твердую политику в ответ на требования террористов; (10.2) укреплять и развивать двустороннее и многостороннее сотрудничество между собой с целью предотвращения терроризма и борьбы с ним, а также повы- шать эффективность существующего сотрудничества на двустороннем уровне или в рамках групп государств, в том числе посредством обмена информацией в надлежащих случаях; (…) (10.4) принимать эффективные меры по предотвращению и пресечению актов терроризма, направленных против дипломатических или консульских предста-

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вителей, и против терроризма, который влечет за собой нарушения Венских кон- венций о дипломатических и консульских сношениях, в частности их положений, относящихся к дипломатическим и консульским привилегиям и иммунитетам; (…) (10.6) рассмотреть вопрос о том, чтобы стать, если они этого еще не сделали, учас- тниками соответствующих международных конвенций, касающихся пресечения актов терроризма; (10.7) продолжать работу в соответствующих международных органах в целях совершенствования и расширения мер борьбы против терроризма и обеспечения того, чтобы возможно большее число государств присоединилось к соответству- ющим соглашениям и действовало в соответствии с ними. Хельсинки 1992 г. (Декларация встречи на высшем уровне) 26. (…) Мы будем поощрять обмен информацией в отношении террористичес- кой деятельности. По мере необходимости мы будем вести поиск эффективных направлений дальнейшего сотрудничества. Мы также будем предпринимать необходимые шаги на национальном уровне для выполнения своих международ- ных обязательств в этой области. Будапешт 1994 г. (Решения: IV. Кодекс поведения, касающийся военно-полити- ческих аспектов безопасности) 6. Государства-участники никоим образом не будут поддерживать террористи- ческие акты и будут принимать надлежащие меры для предотвращения терро- ризма и борьбы с ним во всех его формах. Они будут в полном объеме сотрудни- чать в борьбе против той угрозы, которую представляет собой террористическая деятельность, путем выполнения положений согласованных ими международно правовых документов и обязательств на этот счет. (…) Стамбул 1999 г. (Хартия европейской безопасности: I. Общие для нас вызовы) 4. Все большую угрозу безопасности представляют международный терроризм, экстремизм с применением насилия, организованная преступность и оборот нар- котиков. Терроризм во всех его формах и проявлениях, чем бы он ни мотивиро- вался, является неприемлемым. Мы будем наращивать свои усилия по недопу- щению подготовки и финансирования любых актов терроризма на территории наших государств и отказывать террористам в убежище. Чрезмерное и дестаби- лизирующее накопление и неконтролируемое распространение легкого и стрел- кового оружия представляют собой угрозу миру и безопасности. Мы твердо намерены надежнее защитить себя от этих новых угроз и вызовов; основой такой защиты являются прочные демократические институты и верховенство закона. Мы также полны решимости более активно и тесно сотрудничать друг с другом в противодействии этим вызовам.

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Бухарест 2001 г. (Декларация Совета министров) 2. Мы решительно осуждаем все акты терроризма. Терроризму, независимо от его мотивов или происхождения, нет оправданий. Ничто не может служить оправда- нием сознательных, целенаправленных ударов по ни в чем не повинным людям. В борьбе с терроризмом нельзя оставаться в стороне. 3. (…) Мы вновь заявляем, что борьба с терроризмом не есть война против рели- гий или народов. (…) Бухарест 2001 г. (Решения: Решение No. 1: Борьба c терроризмом) 55 государств-участников ОБСЕ единым фронтом выступают против терроризма, этого бича нашей эпохи. Государства-участники ОБСЕ решительно осуждают варварские террористичес- кие акты, совершенные против Соединенных Штатов Америки 11 сентября 2001 года. Это был удар, направленный против всего международного сообщества, людей всех вероисповеданий и культур. Эти гнусные злодеяния, а также прочие акты терроризма во всех его формах и проявлениях, когда бы, где бы и кем бы они ни совершались, несут угрозу международному и региональному миру, безопас- ности и стабильности. Тем, кто осуществляет и финансирует подобные преступ- ные акты, укрывает или иным образом поддерживает несущих за них ответствен- ность, не должно быть убежища нигде. Терроризму, каковы бы ни были его корни или мотивация, нет оправдания. Государства-участники ОБСЕ не отступят перед угрозами террористов, а будут бороться с ними, используя все средства в соответствии со своими международ- ными обязательствами. Это потребует долгих и неослабных усилий, но они чер- пают силы в своей широкой коалиции, простирающейся от Ванкувера до Влади- востока. Они будут отстаивать свободу и защищать своих граждан от актов тер- роризма, в полной мере уважая международное право и права человека. Они кате- горически не приемлют отождествление терроризма с какой-либо нацией или религией и вновь подтверждают нормы, принципы и ценности ОБСЕ. Государства-участники ОБСЕ обязуются укреплять и развивать двустороннее и многостороннее сотрудничество в рамках ОБСЕ, с Организацией Объединенных Наций и с другими международными и региональными организациями в целях борьбы с террористической деятельностью во всех ее формах и проявлениях, где бы и кем бы она ни осуществлялась. Будучи региональным соглашением по смыслу главы VIII Устава Организации Объединенных Наций, ОБСЕ преиспол- нена решимости вносить свой вклад в выполнение международных обязательств, закрепленных, в частности, в резолюции 1373 (2001) Совета Безопасности Орга- низации Объединенных Наций, и будет действовать в соответствии с целями и принципами Устава Организации Объединенных Наций. Государства-участники ОБСЕ обязуются как можно скорее присоединиться ко всем 12 конвенциям и протоколам Организации Объединенных Наций, касающимся терроризма. Они призывают к скорейшему завершению переговоров относительно всеобъемлю-

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щей конвенции Организации Объединенных Наций по международному терро- ризму. (…) (…) Совет министров ОБСЕ принимает прилагаемый к настоящему Решению Бухарестский план действий по борьбе с терроризмом. Бухарест 2001 г. (Приложение к Решению No. 1: Борьба c терроризмом: Бухарест- ский план действий по борьбе с терроризмом) I. Цель плана действий 1. (…) Государства-участники ОБСЕ мобилизуют свою политическую волю, ресурсы и практические средства на цели выполнения своих обязательств по существующим международным конвенциям, касающимся терроризма (…) (…) II. Международные юридические и политические обязательства 4. (…) Необходимо добиваться обеспечения самого широкого и всестороннего участия государств-участников в существующих механизмах по борьбе с терро- ризмом и выполнении обязательств в этой области. 5. Государства-участники: обязуются предпринять меры к тому, чтобы, по воз- можности, до 31 декабря 2002 года присоединиться ко всем 12 конвенциям и про- токолам Организации Объединенных Наций, касающимся терроризма, призна- вая важную роль, которую могут играть парламентарии в вопросах ратифика- ции и другой законодательной деятельности, направленной против терроризма; представляется целесообразным, чтобы государства информировали Постоян- ный совет о принятых в этом отношении мерах; будут конструктивно участво- вать в проводимых Организацией Объединенных Наций переговорах о всеобъ- емлющей конвенции по борьбе с международным терроризмом и международной конвенции о пресечении актов ядерного терроризма, имея в виду их скорейшее успешное завершение. (…) 7. Государства-участники: рассмотрят вопрос о том, каким образом ОБСЕ могла бы использовать наилучшую практику и уроки, извлеченные из опыта других соответствующих групп, организаций, институтов и форумов, в таких областях, как сотрудничество между полицейскими и судебными органами; недопущение и пресечение финансирования терроризма; исключение других видов поддержки; пограничный контроль, включая меры безопасности в отношении виз и докумен- тов; и доступ правоохранительных органов к информации. 8. Государства-участники будут также использовать Форум по сотрудничеству в области безопасности (ФСБ) для укрепления своих усилий по борьбе с террориз- мом посредством полного и своевременного осуществления всех соответствую- щих мер, согласованных в ОБСЕ. С этой целью они активизируют выполнение существующих военно-политических обязательств и соглашений, в частности

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Кодекса поведения, касающегося военно-политических аспектов безопасности, и Документа о легком и стрелковом оружии (ЛСО). (…) III. Превентивные меры против терроризма в регионе ОБСЕ (…) 11. Утверждение прав человека, терпимости и поликультурности. Государства- участники/Постоянный совет/БДИПЧ/Верховный комиссар по делам нацио- нальных меньшинств (ВКНМ)/Представитель по вопросам свободы средств мас- совой информации: будут пропагандировать и укреплять терпимость, сосущест- вование и гармоничные отношения между этническими, религиозными, языко- выми и другими группами, а также конструктивное сотрудничество между госу- дарствами-участниками в этом отношении; будут обеспечивать раннее предуп- реждение о возможности насилия, нетерпимости, экстремизма и дискриминации в отношении этих групп, адекватно реагировать на такие случаи и в то же время способствовать проявлению этими группами уважения к верховенству закона, демократическим ценностям и свободе личности; будут добиваться того, чтобы лица, принадлежащие к национальным меньшинствам, обладали правом сво- бодно выражать, сохранять и развивать свою этническую, культурную, языковую или религиозную самобытность. (…) 13. Преодоление негативных социально-экономических факторов. Государства- участники/Секретариат: будут стремиться выявлять такие подрывающие безо- пасность экономические и экологические проблемы, как неэффективное госу- дарственное управление, коррупция, противозаконная экономическая деятель- ность, высокий уровень безработицы, массовая нищета и глубокое неравенство, демографические факторы, и неустойчивое использование природных ресурсов, а также будут стремиться противодействовать подобным факторам, опираясь на оказываемую по их просьбе помощь Бюро координатора деятельности ОБСЕ в области экономики и окружающей среды (БКДЭОС), выступающего, в частности, в роли катализатора деятельности и сотрудничества. 14. Предотвращение конфликтов, сопровождающихся насилием, и содействие мирному урегулированию споров. Опираясь на весь свой потенциал, ОБСЕ будет продолжать и активизировать усилия по раннему предупреждению и адекват- ному реагированию, предотвращению конфликтов, регулированию кризисов и постконфликтному восстановлению; укреплять свои возможности по урегулиро- ванию конфликтов; наращивать усилия по нахождению прочного решения неуре- гулированных конфликтов, в том числе путем утверждения верховенства закона и предупреждения преступности в подобных зонах конфликтов на путях более широкого сотрудничества с Организацией Объединенных Наций, Европейс- ким союзом и другими международными организациями; и далее развивать свой потенциал быстрого развертывания (РЕАКТ) в кризисных ситуациях.

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15. Решение проблемы затянувшегося перемещения. Государства-участники/ БДИПЧ/ВКНМ/Представитель по вопросам свободы средств массовой инфор- мации: будут изучать возможности укрепления потенциала ОБСЕ по поиску надежных решений, поддержке других соответствующих организаций, в первую очередь Управления Верховного комиссара ООН по делам беженцев, и тесному сотрудничеству с ними; будут внимательно следить за ситуациями, связанными с затянувшимся перемещением. 16. Укрепление национального антитеррористического законодательства. Госу- дарства-участники: обязуются выполнять все обязательства, принятые ими в рамках соответствующих конвенций и протоколов, касающихся терроризма, а также в рамках Конвенции Организации Объединенных Наций против трансна- циональной организованной преступности и дополняющих ее протоколов, обме- ниваться соответствующей информацией и методикой и рассматривать пути и средства сотрудничества в вопросах осуществления на встречах, проводимых на двусторонней основе, в рамках всей ОБСЕ и на субрегиональном уровне. (…) 24. Пресечение финансирования терроризма. Государства-участники: будут в рамках Конвенции Организации Объединенных Наций о борьбе с финансирова- нием терроризма и резолюции 1373 (2001) Совета Безопасности ООН принимать меры по предотвращению и пресечению финансирования терроризма, введению уголовной ответственности за умышленное предоставление или сбор средств в целях террористической деятельности и блокированию активов террористов, принимая также во внимание резолюцию 1267 (1999) Совета Безопасности ООН; будут, в соответствии со своим внутренним законодательством и обязательс- твами по международному праву оперативно реагировать на запросы других государств-участников и соответствующих международных организаций о пре- доставлении информации. 25. Государства-участники/Секретариат: (…) рассмотрят вопрос о возможном вкладе ОБСЕ в рамках ее работы по повышению транспарентности и борьбы с коррупцией в общие международные усилия, направленные против терроризма; рассмотрят вопрос о том, чтобы взять на себя катализирующую роль в органи- зации для персонала национальных финансовых учреждений целевых проектов учебной подготовки по тематике борьбы с терроризмом, включая контроль за финансовыми потоками и недопущение отмывания денег. Государства-участники будут принимать конструктивное участие в предстоящих переговорах по линии Организации Объединенных Наций относительно глобального правового доку- мента о борьбе с коррупцией в интересах их скорейшего успешного завершения. 26. Предотвращение передвижения террористов. Государства-участники: будут предотвращать передвижение террористов или террористических групп с помо- щью эффективного пограничного контроля и контроля за выдачей документов, удостоверяющих личность, и проездных документов, а также с помощью мер безо- пасности в отношении таких документов и предупреждения их фальсификации,

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подделки и незаконного использования; будут применять такие меры контроля с полным соблюдением своих обязательств по международно-правовым актам о беженцах и о правах человека; будут путем надлежащего применения положений об исключениях, содержащихся в Конвенции 1951 года о статусе беженцев и Про- токоле 1967 года к ней, обеспечивать, чтобы лицам, участвовавшим в террорис- тических актах, не предоставлялось убежище; будут обеспечивать своевременное задержание и судебное преследование либо выдачу лиц, обвиняемых в террорис- тических актах, в соответствии со своими обязательствами по международному и национальному праву. IV. Действия в соответствии с Платформой безопасности, основанной на сотрудничестве, — сотрудничество с другими организациями (…) 28. Государства-участники/Секретариат: будут укреплять сотрудничество и обмен информацией как на официальной, так и неофициальной основе с другими соответствующими группами, организациями и институтами, участвующими в борьбе с терроризмом; будут укреплять сотрудничество с Европейским союзом в области анализа и раннего предупреждения, а также повышать синергетический эффект взаимодействия с Пактом о стабильности для Юго-Восточной Европы и Центральноевропейской инициативой в областях, имеющих отношение к борьбе с терроризмом; будут развивать диалог в регионе ОБСЕ по вопросам, касающимся новых угроз и вызовов; будут расширять диалог с партнерами за пределами реги- она ОБСЕ, в частности со средиземноморскими партнерами по сотрудничеству и партнерами по сотрудничеству в Азии, Шанхайской организацией сотрудничес- тва, Совещанием по взаимодействию и мерам укрепления доверия в Азии, Орга- низацией Исламская конференция, Лигой арабских стран, Африканским союзом и государствами, граничащими с регионом ОБСЕ, в целях обмена информацией о наилучшей практике и извлеченных уроках, касающихся борьбы с терроризмом, для их применения в регионе ОБСЕ. (…) Бухарест 2001 г. (Решения: Решение No. 9: Деятельность, связанная с полицейс- кими функциями) Совет министров, (…) подтверждая, что для утверждения верховенства закона и защиты демократичес- ких институтов необходима эффективная полицейская деятельность, (…) 3. Постановляет наращивать и развивать сотрудничество между государствами- участниками в противодействии новым вызовам безопасности, в том числе путем: • осуществления и координации, по просьбе государств-участников и с их согла- сия и — если это необходимо в соответствии с действующими процедурами

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ОБСЕ — по решению Постоянного совета, деятельности ОБСЕ по подготовке полицейских кадров, в том числе на субрегиональном уровне, с целью: • расширения оперативно-тактических возможностей полиции; • повышения квалификации полицейских в ключевых областях, включая ува- жение прав человека и основных свобод и, при необходимости, в вопросах, связанных с криминальными аспектами незаконной миграции; и • укрепления потенциала в области полицейской работы на местах, борьбы с наркотиками, коррупцией и терроризмом; и • по просьбе государств-участников и с их согласия: • предоставления рекомендаций или организации оказания экспертных услуг, касающихся потребностей в эффективной полицейской работе (оценка пот- ребностей) и способов их удовлетворения (…); и • стимулирование, по мере необходимости, обмена между государствами-учас- тниками информацией относительно извлеченных уроков и наилучшей поли- цейской практики по противодействию этим новым вызовам безопасности. (…) 5. Во исполнение вышеизложенных обязательств государства-участники обязу- ются: • расширять сотрудничество между собой по вопросам, связанным с полицейс- кими функциями, с целью противостояния новым угрозам и вызовам их безо- пасности как на двустороннем, так и на многостороннем уровне, а также, при необходимости, путем укрепления контактов между соответствующими орга- нами; и • делиться специальными знаниями и опытом ОБСЕ в вопросах деятельности, связанной с полицейскими функциями, с другими соответствующими между- народными организациями, членам которых они являются, с целью повыше- ния эффективности международных действий по отражению этих новых угроз и вызовов безопасности. Порту 2002 г. (Хартия ОБСЕ о предупреждении терроризма и борьбе с ним) Государства-участники ОБСЕ, твердо приверженные совместной борьбе с терро- ризмом, (…) 2. (…) подтверждают, что противодействие терроризму не направлено против какой-либо религии, нации или народа; (…)

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4. Заявляют, что акты, методы и практика терроризма, а также сознательное пособничество и потворство таким актам, их финансирование, планирование и подстрекательство к ним противоречат целям и принципам ООН и ОБСЕ; 5. Считают чрезвычайно важным дополнить продолжающийся процесс выпол- нения принятых в ОБСЕ обязательств в отношении терроризма подтверждением основополагающих, незыблемых принципов, на которых основаны и впредь будут основываться действия ОБСЕ и которые государства-участники полностью раз- деляют; (…) 8. Вновь подтверждают, что каждое государство обязано воздерживаться от (…) организации террористических актов в другом государстве, подстрекательства к ним, оказания им активной или пассивной поддержки или содействия и от спон- сирования их в какой-либо иной форме (…) (…) 11. Признают, что соответствующие конвенции и протоколы Организации Объ- единенных Наций и резолюции Совета Безопасности ООН, в частности резолю- ция 1373 (2001) Совета Безопасности ООН, образуют первичную международно- правовую основу для борьбы с терроризмом; 12. Признают важность работы, проводимой Контртеррористическим комитетом Совета Безопасности ООН, и вновь подтверждают обязательство и готовность государств-участников и ОБСЕ сотрудничать с этим комитетом; 13. Напоминают о роли ОБСЕ как регионального соглашения по смыслу главы VIII Устава ООН и о ее обязательствах в этом контексте вносить вклад в глобаль- ную борьбу с терроризмом; (…) 15. С удовлетворением отмечают Декларацию и Программу действий, приня- тые на состоявшейся 13-14 декабря 2001 года Бишкекской международной конфе- ренции на тему “Укрепление безопасности и стабильности в Центральной Азии: наращивание всесторонних усилий по противодействию терроризму”; (…) 17. Подчеркивают, что предупреждение терроризма и борьба с ним должны осно- вываться на концепции общей и всеобъемлющей безопасности и на долговремен- ном подходе, и обязуются использовать три измерения ОБСЕ и все ее органы и институты для оказания государствам-участникам по их просьбе содействия в предупреждении терроризма во всех его формах и борьбе с ним; 18. Заявляют о том, что выполнят свое обязательство — в соответствии с конвен- циями и протоколами ООН и резолюциями Совета Безопасности, а также дру- гими международными обязательствами — обеспечить, чтобы террористические акты и деятельность в поддержку таких актов, включая финансирование терро-

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ризма, квалифицировались во внутреннем законодательстве как серьезные уго- ловные правонарушения; 19. Будут работать сообща в целях предотвращения, пресечения и расследования террористических актов и преследования виновных, в том числе путем наращи- вания сотрудничества и выполнения в полном объеме соответствующих между- народных конвенций и протоколов, касающихся терроризма; 20. Убеждены в необходимости устранять потенциальные предпосылки воз- никновения и существования терроризма, в частности, путем обеспечения пол- ного уважения демократии и верховенства закона, предоставления всем гражда- нам возможности в полной мере участвовать в политической жизни, недопуще- ния дискриминации и поощрения межкультурного и межрелигиозного диалога в своих обществах, вовлечения гражданского общества в поиск общего политичес- кого урегулирования конфликтов, утверждения прав человека и толерантности, а также путем борьбы с бедностью; 21. Признают положительную роль, которую средства массовой информации могут играть в пропаганде толерантности и взаимопонимания между представи- телями различных религий, убеждений, культур и народов, а также в содействии более широкому осознанию угрозы терроризма; 22. Обязуются бороться с пропагандой ненависти и принимать необходимые меры для недопущения злоупотребления средствами массовой информации и информационными технологиями в террористических целях, обеспечивая соот- ветствие таких мер внутреннему законодательству, международному праву и при- нятым в рамках ОБСЕ обязательствам; 23. Будут предотвращать передвижение террористов или террористических групп с помощью эффективного пограничного контроля и контроля за выдачей доку- ментов, удостоверяющих личность, и проездных документов; (…) 25. Подтверждают свою решимость выполнять свои международные обязатель- ства, изложенные в резолюциях 1373 (2001) и 1390 (2002) Совета Безопасности ООН, и в частности блокировать активы тех, кто указан комитетом, созданным в соответствии с резолюцией 1267 (1999) Совета Безопасности ООН; 26. С озабоченностью отмечают связи между терроризмом и транснациональной организованной преступностью, отмыванием денег, торговлей людьми, незакон- ным оборотом наркотиков и оружия и в этой связи подчеркивают необходимость улучшения координации действий и выработки основанных на сотрудничестве подходов на всех уровнях в целях более эффективного реагирования на эти серь- езные угрозы и вызовы безопасности и стабильности; (…)

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Порту 2002 г. (Решения: Решение No. 1: Выполнение принятых в ОБСЕ обяза- тельств и осуществление ее деятельности по борьбе с терроризмом) Совет министров, (…) обязуется вести дело к успешному завершению идущих в настоящее время в Орга- низации Объединенных Наций переговоров о новых универсальных документах в этой области и подтверждает свою готовность рассмотреть — координируя это рассмотрение с Контртеррористическим комитетом Совета Безопасности ООН — запросы о технической помощи и наращивании потенциала с целью содейс- твия ратификации и реализации документов ООН и других соответствующих документов, касающихся терроризма; (…) напоминает о рекомендации личного представителя Действующего председателя по вопросам предупреждения терроризма и борьбы с ним о том, чтобы ОБСЕ вела работу, в частности, в таких областях, как выполнение полицейских функций, обеспечение пограничной безопасности, борьба с незаконной торговлей и пресе- чение финансирования терроризма. (…) постановляет, что государства — участники ОБСЕ, ее органы и институты будут наращивать свои усилия и свою коллективную приверженность борьбе с тер- роризмом и с условиями, которые могут способствовать его возникновению и существованию, используя для этого свои сильные стороны и сравнительные преимущества: свой всеобъемлющий подход к безопасности, свой экспертный потенциал в деле раннего предупреждения, предотвращения конфликтов, регули- рования кризисов и постконфликтного восстановления, свой широкий ассорти- мент испытанных мер укрепления доверия и безопасности и свой опыт и знания в том, что касается развития потенциала. Маастрихт 2003 г. (I. Стратегия ОБСЕ по противодействию угрозам безопасности и стабильности в XXI веке) Угрозы безопасности и стабильности в XXI веке 10. Одной из основных причин нынешней нестабильной обстановки в сфере безопасности является терроризм. Он направлен на подрыв тех самых ценнос- тей, которые объединяют государства-участники в регионе ОБСЕ. Терроризм будет оставаться в числе главных вызовов миру, стабильности и государственной власти, особенно в силу его способности прибегать к асимметричным методам для обхода традиционных систем безопасности и обороны. Терроризму не может быть никаких оправданий. Вместе с тем терроризм требует глобального подхода, учитывающего не только его проявления, но и социально-экономический и поли- тический контекст, в котором он возникает. (…)

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Противодействие терроризму и угрозам, исходящим от другой преступной деятельности Терроризм 29. (…) Особое внимание будет уделяться наращиванию потенциала и оказанию иной помощи в области борьбы с терроризмом. (…) Эти меры включают отказ в предоставлении убежищ террористам и ликвидацию условий, при которых тер- рористы могут вербовать сторонников и рассчитывать на поддержку. Они также направлены на то, чтобы не позволить террористам увеличить свой потенциал и, в частности, получить доступ к ЛСО и другому обычному оружию, а также к ОМУ и связанным с ним технологиям. Ставится задача тесного взаимодействия с другими соответствующими международными организациями и органами, в час- тности с Контртеррористическим комитетом Совета Безопасности ООН (КТК ООН) и Управлением ООН по наркотикам и преступности (ЮНОДК), в форме совместных совещаний, контактов на всех уровнях, конкретных программ и про- ектов. 30. ОБСЕ также постановила создать контртеррористическую сеть в целях содейс- твия более четкой координации контртеррористических мер и обмену информа- цией между государствами-участниками ОБСЕ, а также в порядке поддержки и дополнения работы КТК ООН по осуществлению резолюции 1373 Совета Безо- пасности. Угрозы, исходящие от другой преступной деятельности (…) 35. Угрозы терроризма и организованной преступности часто взаимосвязаны, и будет продолжено изучение синергетических подходов к противодействию им. Трансграничное передвижение людей, ресурсов и оружия, а также незаконный оборот как источник финансирования и материально-технической поддержки играют возрастающую роль в террористической деятельности. ОБСЕ твердо наме- рена решать эти проблемы и укреплять свой потенциал содействия открытости и безопасности границ, в том числе путем разработки концепции ОБСЕ по вопро- сам безопасности границ и пограничного режима, в интересах более эффектив- ного наращивания потенциала и взаимовыгодного межгосударственного сотруд- ничества. София 2004 г. (Заявление Совета министров в Софии по предупреждению терро- ризма и борьбе с ним) 1. Мы, члены Совета министров ОБСЕ (…) заявляем о своем решительном и безу- словном осуждении террористических актов, произошедших, в частности, в 2004 году в Испании, Узбекистане, Турции и России (…) Мы скорбим о сотнях челове- ческих жизней, которые они унесли, и выражаем глубокую солидарность с жер- твами актов терроризма и членами их семей. Эти акты наглядно показали бес- человечную природу терроризма. Мы выражаем солидарность с государствами,

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не являющимися участниками нашей организации, которые также подверглись нападению террористов. Вновь заявляя, что терроризм представляет одну из самых серьезных угроз миру и безопасности, и считая, что акты терроризма наносят серьезный ущерб осу- ществлению прав человека, мы вновь подтверждаем свое обязательство защи- щать от террористических актов осуществление прав человека и основных сво- бод, особенно права на жизнь, каждого, кто находится под нашей юрисдикцией. (…) 2. Мы подчеркиваем ведущую роль Организации Объединенных Наций во всео- бъемлющей борьбе против терроризма. Мы подтверждаем международно-правовые и политические обязательства, при- нятые нашими государствами в области борьбы с терроризмом в рамках Орга- низации Объединенных Наций, включая резолюции 1267 (1999), 1373 (2001), 1456 (2003), 1535 (2004), 1540 (2004) и 1566 (2004) Совета Безопасности ООН, а также резолюцию 58/187 Генеральной ассамблеи ООН, и поддерживаем резолюцию 2004/87 Комиссии ООН по правам человека. (…) Мы приветствуем значение, придаваемое резолюцией 1566 (2004) Совета Безо- пасности ООН роли соответствующих международных, региональных и субреги- ональных организаций в укреплении международного сотрудничества в борьбе с терроризмом, и призыв к усиленному взаимодействию с Организацией Объеди- ненных Наций. Мы подчеркиваем нашу решимость поддерживать важные усилия Контртерро- ристического комитета Совета Безопасности ООН и его Исполнительного дирек- тората. (…) 3. Мы (…) поддерживаем работу Антитеррористического подразделения Секре- тариата ОБСЕ. Мы убеждены, что пакет практических решений, которые мы утверждаем и при- ветствуем сегодня*, и их последующее выполнение повысят уровень безопасности и стабильности на пространстве ОБСЕ. Эти решения помогут обеспечить выпол- нение наших международно-правовых обязательств по предупреждению терро- ризма и борьбе с ним. 4. (…) Мы подтверждаем, что усилия ОБСЕ по противодействию террористичес- ким угрозам должны предприниматься во всех измерениях ОБСЕ — в измерении безопасности, включая военно-политическую сферу, в экономико-экологическом и человеческом измерениях. Основанная на общем, всеобъемлющем и неделимом подходе к безопасности, наша организация способна и дальше вносить весомый вклад в глобальные антитеррористические усилия. * Решение No. 617 Постоянного совета о дальнейших мерах по пресечению финансирования терроризма (1 июля 2004 года). Решение No. 618 Постоянного совета о солидарности с жертвами терроризма (1 июля 2004 года). Решение Совета министров о борьбе с использованием Интернета в террористических целях. Решение Совета министров о повышении контейнерной безопасности. Решение Совета министров о передаче информации об утерянных/похищенных паспортах в САП-БДПД Интерпола.

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Мы убеждены, что уважение прав человека и основных свобод является важным элементом обеспечения мира и стабильности и предупреждения терроризма. Мы признаем, что для эффективного предупреждения терроризма и борьбы с ним требуется привлечение гражданского общества в наших странах. (…) Мы будем активно сотрудничать по вопросам розыска и привлечения к ответственности исполнителей, организаторов, спонсоров террористических актов и тех, кто их поддерживает. Мы также будем продолжать развивать взаимодействие и диалог по вопросам предупреждения терроризма и борьбы с ним со средиземноморскими и азиатс- кими партнерами по сотрудничеству. София 2004 г. (Решения: Решение No. 3/04: Борьба с использованием интернета в террористических целях) Совет министров, (…) обеспокоенный масштабами использования Интернета террористическими орга- низациями: • для выявления и вербовки потенциальных членов, • для сбора и перевода средств, • для организации террористических актов, • для подстрекательства к террористическим актам, в частности посредством использования пропаганды, постановляет, что государства-участники будут обмениваться информацией об использовании Интернета в террористических целях и определять возможные стратегии борьбы с этой угрозой (…)

6.4.2 Уважение прав человека и верховенства закона при борьбе с терроризмом Мадрид 1983 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) Государства-участники (…) выражают свою решимость принимать эффективные меры по предотвращению и пресечению актов терроризма (…) Они соглашаются делать это в соответствии с (…) хельсинкским Заключительным актом. Копенгаген 1990 г. (6) Государства-участники (…) признают свою ответственность за защиту и охрану в соответствии со своими законами, своими обязательствами по международ- ному праву в области прав человека и своими международными обязательствами свободно установленный путем волеизъявления народа демократический поря- док от деятельности отдельных лиц, групп или организаций, которые используют или отказываются отвергнуть терроризм или насилие, направленные на сверже- ние этого порядка или такого порядка в другом государстве-участнике.

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Бухарест 2001 г. (Декларация Совета министров) 3. (…) Мы вновь заявляем, что борьба с терроризмом не есть война против рели- гий или народов. Мы подтверждаем нашу приверженность защите прав человека и основных свобод. 4. Мы твердо намерены защитить своих граждан от новых вызовов их безопас- ности, оберегая при этом верховенство закона, индивидуальные свободы и право на равное правосудие в рамках закона. (…) Бухарест 2001 г. (Решения: Решение No. 1: Борьба c терроризмом) (…) Государства-участники ОБСЕ не отступят перед угрозами террористов, а будут бороться с ними, используя все средства в соответствии со своими междуна- родными обязательствами. (…) Они будут отстаивать свободу и защищать своих граждан от актов терроризма, в полной мере уважая международное право и права человека. Они категорически не приемлют отождествление терроризма с какой-либо нацией или религией и вновь подтверждают нормы, принципы и цен- ности ОБСЕ. Бухарест 2001 г. (Приложение к Решению No. 1: Борьба c терроризмом: Бухарест- ский план действий по борьбе с терроризмом) 26. Предотвращение передвижения террористов. Государства-участники: будут предотвращать передвижение террористов или террористических групп с помо- щью эффективного пограничного контроля и контроля за выдачей документов, удостоверяющих личность, и проездных документов (…) будут применять такие меры контроля с полным соблюдением своих обязательств по международно- правовым актам о беженцах и о правах человека (…) Порту 2002 г. (Хартия ОБСЕ о предупреждении терроризма и борьбе с ним) Государства-участники ОБСЕ (…) (…) 5. Считают чрезвычайно важным дополнить продолжающийся процесс выпол- нения принятых в ОБСЕ обязательств в отношении терроризма подтверждением основополагающих, незыблемых принципов, на которых основаны и впредь будут основываться действия ОБСЕ и которые государства-участники полностью раз- деляют; 6. Подтверждают свое обязательство принимать меры, необходимые для защиты от террористических актов прав человека и основных свобод, особенно права на жизнь, каждого, кто находится под их юрисдикцией; 7. Обязуются принимать эффективные и решительные меры против терроризма и осуществлять все контртеррористические меры и сотрудничество в соответствии с принципом верховенства закона, Уставом ООН и соответствующими положени-

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ями международного права, международными стандартами в области прав чело- века и, где это применимо, положениями международного гуманитарного права; (…) София 2004 г. (Заявление Совета министров в Софии по предупреждению терро- ризма и борьбе с ним) (…) Мы вновь подчеркиваем нашу решимость бороться с терроризмом во всех его формах и проявлениях (…) и вести эту борьбу при соблюдении верховенства закона и в соответствии с нашими обязательствами по международному праву, в частности, международным стандартам в области прав человека, беженскому праву и гуманитарному праву. 2. Мы подчеркиваем ведущую роль Организации Объединенных Наций во всео- бъемлющей борьбе против терроризма. (…) резолюцию 2004/87 Комиссии ООН по правам человека. (…) София 2004 г. (Решения: Решение No. 3/04: Борьба с использованием интернета в террористических целях) Совет министров, (…) обеспокоенный масштабами использования Интернета террористическими орга- низациями: (…) постановляет, что государства-участники будут обмениваться информацией об использовании Интернета в террористических целях и определять возможные стратегии борьбы с этой угрозой, обеспечивая в то же время соблюдение между- народных обязательств и норм в области прав человека, в том числе касающихся прав на неприкосновенность частной жизни, свободу мнений и свободу выраже- ния; (…)

6.4.3 Предотвращение деятельности, связанной с терроризмом, на территории государств-участников Мадрид 1983 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) В контексте борьбы против актов терроризма [государства-участники] будут при- нимать все соответствующие меры к тому, чтобы воспрепятствовать использо- ванию их соответствующих территорий с целью подготовки, организации или совершения террористической деятельности, включая направленную против дру- гих государств-участников и их граждан. Это распространяется также на меры по запрещению на их территориях незаконной деятельности лиц, групп и орга- низаций, которые подстрекают, организуют акты терроризма или участвуют в их совершении.

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Вена 1989 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) (10) (…) государства-участники выражают свое намерение: (…) (10.3.) предотвращать на своих территориях незаконную деятельность лиц, групп или организаций, которые подстрекают, организуют или участвуют в актах тер- роризма или подрывной или другой деятельности, направленной на насильствен- ное свержение режима другого государства-участника; Стамбул 1999 г. (Хартия европейской безопасности: I. Общие для нас вызовы) 4. (…) Мы будем наращивать свои усилия по недопущению подготовки и финан- сирования любых актов терроризма на территории наших государств и отказы- вать террористам в убежище. (…) Бухарест 2001 г. (Приложение к Решению No. 1: Борьба c терроризмом: Бухарест- ский план действий по борьбе с терроризмом) 24. Пресечение финансирования терроризма. Государства-участники: будут в рамках Конвенции Организации Объединенных Наций о борьбе с финансирова- нием терроризма и резолюции 1373 (2001) Совета Безопасности ООН принимать меры по предотвращению и пресечению финансирования терроризма, введению уголовной ответственности за умышленное предоставление или сбор средств в целях террористической деятельности и блокированию активов террористов, принимая также во внимание резолюцию 1267 (1999) Совета Безопасности ООН; будут, в соответствии со своим внутренним законодательством и обязательс- твами по международному праву оперативно реагировать на запросы других государств-участников и соответствующих международных организаций о пре- доставлении информации. 25. Государства-участники/Секретариат: (…) рассмотрят вопрос о возможном вкладе ОБСЕ в рамках ее работы по повышению транспарентности и борьбы с коррупцией в общие международные усилия, направленные против терроризма; рассмотрят вопрос о том, чтобы взять на себя катализирующую роль в органи- зации для персонала национальных финансовых учреждений целевых проектов учебной подготовки по тематике борьбы с терроризмом, включая контроль за финансовыми потоками и недопущение отмывания денег. Государства-участники будут принимать конструктивное участие в предстоящих переговорах по линии Организации Объединенных Наций относительно глобального правового доку- мента о борьбе с коррупцией в интересах их скорейшего успешного завершения. 26. Предотвращение передвижения террористов. Государства-участники: будут предотвращать передвижение террористов или террористических групп с помо- щью эффективного пограничного контроля и контроля за выдачей документов, удостоверяющих личность, и проездных документов, а также с помощью мер безо- пасности в отношении таких документов и предупреждения их фальсификации, подделки и незаконного использования; будут применять такие меры контроля

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с полным соблюдением своих обязательств по международно-правовым актам о беженцах и о правах человека; будут путем надлежащего применения положений об исключениях, содержащихся в Конвенции 1951 года о статусе беженцев и Про- токоле 1967 года к ней, обеспечивать, чтобы лицам, участвовавшим в террорис- тических актах, не предоставлялось убежище; будут обеспечивать своевременное задержание и судебное преследование либо выдачу лиц, обвиняемых в террорис- тических актах, в соответствии со своими обязательствами по международному и национальному праву. Порту 2002 г. (Хартия ОБСЕ о предупреждении терроризма и борьбе с ним) Государства-участники ОБСЕ, твердо приверженные совместной борьбе с терро- ризмом, (…) 8. Вновь подтверждают, что каждое государство обязано воздерживаться от укры- вательства террористов, от организации террористических актов в другом госу- дарстве, подстрекательства к ним, оказания им активной или пассивной подде- ржки или содействия и от спонсирования их в какой-либо иной форме, а также не должно попустительствовать на своей территории организованной деятель- ности, направленной на совершение таких актов; (…) 24. Признают необходимость дополнять международное сотрудничество приня- тием всех необходимых мер для того, чтобы всеми законными средствами пре- дотвращать и пресекать на своей территории пособничество любым террористи- ческим актам, их финансирование и подготовку, а также для введения уголовной ответственности за умышленное предоставление или сбор средств в целях тер- рористической деятельности, в рамках своих обязательств по Международной конвенции о борьбе с финансированием терроризма и соответствующим резолю- циям Совета Безопасности; (…)

6.4.4 Выдача и судебное преследование лиц, причастных к террористическим актам Вена 1989 г. (Вопросы, относящиеся к безопасности в Европе: Принципы) (10) (…) государства-участники выражают свое намерение: (…) (10.5) обеспечить выдачу или судебное преследование лиц, причастных к терро- ристическим актам, и тесно сотрудничать в случаях конкурирующей юрисдик- ции, когда заинтересованными оказываются несколько государств, действуя в обоих случаях согласно соответствующим международным соглашениям;

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Будапешт 1994 г. (Решения: IV. Кодекс поведения, касающийся военно-полити- ческих аспектов безопасности) 6. Государства-участники (…) будут предпринимать шаги по выполнению требо- ваний международных соглашений, налагающих на них обязательства по судеб- ному преследованию или выдаче террористов. Бухарест 2001 г. (Приложение к Решению No. 1: Борьба c терроризмом: Бухарест- ский план действий по борьбе с терроризмом) 19. Поддержка правоохранительной деятельности и борьба с организованной преступностью. Государства-участники: (…) будут оказывать друг другу макси- мальную помощь в предоставлении информации в связи с уголовными расследо- ваниями или процедурами выдачи преступников, связанными с террористичес- кими актами, в соответствии со своим внутренним законодательством и между- народными обязательствами. Порту 2002 г. (Хартия ОБСЕ о предупреждении терроризма и борьбе с ним) Государства-участники ОБСЕ, твердо приверженные совместной борьбе с терро- ризмом, (…) 10. Будут предпринимать надлежащие шаги с целью не допустить предоставле- ния убежища любому лицу, планировавшему, способствовавшему или участво- вавшему в террористических актах, соблюдая при этом соответствующие поло- жения внутригосударственного и международного права (…) (…) 18. Заявляют о том, что выполнят свое обязательство — в соответствии с конвен- циями и протоколами ООН и резолюциями Совета Безопасности, а также дру- гими международными обязательствами — обеспечить, чтобы террористические акты и деятельность в поддержку таких актов, включая финансирование терро- ризма, квалифицировались во внутреннем законодательстве как серьезные уго- ловные правонарушения; 19. Будут работать сообща в целях предотвращения, пресечения и расследования террористических актов и преследования виновных, в том числе путем наращи- вания сотрудничества и выполнения в полном объеме соответствующих между- народных конвенций и протоколов, касающихся терроризма; (…)

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Хельсинки 1992 г. (Решения: VI. Человеческое измерение) Международное гуманитарное право Государства-участники (47) Напоминают, что международное гуманитарное право основывается на неотъемлемом достоинстве человеческой личности. (48) Будут при любых обстоятельствах уважать и обеспечивать уважение между- народного гуманитарного права, включая защиту гражданского населения. (49) Напоминают, что те, кто нарушает международное гуманитарное право несут за свои действия личную ответственность. (50) Признают существенно важную роль Международного Комитета Красного Креста в содействии осуществлению и развитию международного гуманитарного права, включая Женевские конвенции и их соответствующие Протоколы. (51) Вновь подтверждают свое обязательство оказывать всемерную поддержку Международному Комитету Красного Креста, а также Обществам Красного Креста и Красного Полумесяца и организациям системы Организации Объеди- ненных наций, особенно в периоды вооруженных конфликтов, уважать их защит- ные эмблемы, предотвращать злоупотребление этими эмблемами и, когда это необходимо, прилагать все усилия для обеспечения доступа в соответствующие районы. (52) Заявляют о приверженности выполнению своего обязательства вести про- светительскую деятельность и распространять информацию в отношении своих обязательств в рамках международного гуманитарного права. Стокгольм 1992 г. (Решения: 2. СБСЕ как система общих ценностей) (…) Обостряющаяся проблема беженцев и перемещенных лиц является вопро- сом, вызывающим серьезную озабоченность всех государств-участников, осо- бенно удовлетворение основных человеческих потребностей. Министры выра-

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зили сожаление в связи с тяготами гражданского населения, наиболее пострадав- шего в результате подобных конфликтов, и обратились с призывом ко всем госу- дарствам-участникам внести вклад в согласованные усилия по разделению этого общего бремени. Правительства всех стран несут ответственность друг перед другом за свое поведение в отношении своих граждан и своих соседей. Отде- льные лица должны нести личную ответственность за военные преступления и действия в нарушение международного гуманитарного права. (…) Рим 1993 г. (Решения: X. Декларация об агрессивном национализме, расизме, шовинизме, ксенофобии и антисемитизме) 4. Министры сосредоточили внимание на необходимости срочных действий с целью прочного обеспечения строгого соблюдения норм международного гума- нитарного права, включая преследование и наказание виновных в военных пре- ступлениях и в других преступлениях против человечества. Будапешт 1994 г. (Решения: IV. Кодекс поведения, касающийся военно-полити- ческих аспектов безопасности) 29. Государства-участники будут широко распространять в своих странах доку- менты международного гуманитарного права, касающегося военных действий. Они в соответствии со своей национальной практикой будут отражать свои обя- зательства в этой области в своих военных учебных программах и правилах. 30. Каждое государство-участник будет обеспечивать, чтобы личный состав его вооруженных сил был ознакомлен с положениями международного гуманитар- ного права, международными гуманитарными правилами, нормами и обязатель- ствами, касающимися вооруженных конфликтов, а также осведомлен о том, что он несет индивидуальную ответственность согласно национальному законода- тельству и международному праву за свои действия. 31. Государства-участники будут обеспечивать, чтобы личный состав вооружен- ных сил, наделенный командными полномочиями, осуществлял их согласно соответствующему национальному законодательству и международному праву, а также чтобы он был осведомлен о том, что в соответствии с этими правовыми нормами он может привлекаться к индивидуальной ответственности за про- тивозаконное осуществление таких полномочий и что приказы, противореча- щие национальному законодательству и международному праву, отдаваться не должны. Ответственность вышестоящих лиц ни в коей мере не освобождает под- чиненных от их собственной индивидуальной ответственности. (…) 34. Каждое государство-участник будет обеспечивать, чтобы в условиях как мир- ного, так и военного времени руководство, укомплектование личным составом, подготовка и оснащение его вооруженных сил отвечали положениям междуна- родного права и его соответствующим правовым и иным обязательствам, каса-

282 Обязательства ОБСЕ в области человеческого измерения Ч АС Т Ь I I

ющимся использования вооруженных сил в ходе вооруженного конфликта, вклю- чая, когда это применимо, Гаагские конвенции 1907 и 1954 годов, Женевские кон- венции 1949 года и дополнительные протоколы 1977 года к ним, а также Конвен- цию 1980 года о применении некоторых видов обычного оружия. 35. Каждое государство-участник будет обеспечивать, чтобы его политика и доктрина в области обороны не противоречили международно правовым нормам, касающимся использования вооруженных сил, в том числе в ходе вооруженного конфликта, а также соответствующим обязательствам, содержащимся в настоя- щем Кодексе. Будапешт 1994 г. (Решения: VIII. Человеческое измерение) 33. Государства-участники выражают глубокое сожаление в связи с рядом гру- бых нарушений международного гуманитарного права, имевших место в реги- оне СБСЕ в последние годы, и вновь подтверждают свое обязательство уважать и обеспечивать уважение общего гуманитарного права и, в частности, своих обя- зательств по соответствующим международно-правовым документам, включая Женевские конвенции 1949 года и дополнительные протоколы к ним, участни- ками которых они являются. 34. Они подчеркивают потенциальное значение декларации о минимальных гуманитарных нормах, применимых во всех ситуациях, и заявляют о своей готов- ности принять активное участие в ее выработке в рамках ООН. Они обязуются обеспечивать надлежащее информирование и подготовку личного состава своих военных служб в том, что касается положений международного гуманитарного права, и считают, что информация на этот счет должна быть доступной для озна- комления. 35. Они высоко ценят развивающееся сотрудничество между СБСЕ и Междуна- родным Комитетом Красного Креста (МККК), в том числе с участием миссий СБСЕ, приветствуют готовность МККК к развитию этого сотрудничества и обя- зуются и впредь оказывать МККК поддержку, в частности, путем укрепления кон- тактов, уже установленных между миссиями СБСЕ и делегациями МККК, работа- ющими на местах. Стамбул 1999 г. (Хартия европейской безопасности: III. Наш общий ответ) 22. Мы отвергаем любую политику этнических чисток или массового изгнания. (…) С целью усиления защиты гражданских лиц во время конфликта мы будем вести поиск путей более активного применения международного гуманитарного права. София 2004 г. (Декларация министров о шестидесятой годовщине окончания второй мировой войны) (…) Мы осуждаем все формы этнической чистки. Мы подтверждаем свою при- верженность принятой 9 декабря 1948 года Конвенции ООН о предупреждении преступления геноцида и наказании за него. Мы призываем государства-участ-

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ники предпринять все возможные действия для недопущения попыток соверше- ния геноцида, как в наши дни, так и в будущем. Виновные в подобных преступле- ниях должны привлекаться к ответственности. София 2004 г. (Решения: Приложение к Решению No. 14/04: План действий ОБСЕ 2004 года по поддержке гендерного равенства) IV. Поддержка гендерного равенства в государствах-участниках (…) 42. Соответственно, государствам-участникам рекомендуется: (…) • поддерживать национальные и международные усилия по привлечению к ответственности лиц, совершивших против женщин преступления, которые в соответствии с применимыми нормами международного права квалифициру- ются как военные преступления или преступления против человечности (…)

284 Обязательства ОБСЕ в области человеческого измерения Указатель

A авторское право 126, 127, 132; также см. интеллектуальная собственность альтернативное наказание 108, 201 антисемитизм xxii, 12, 52, 55-56, 57, 68, 74, 160, 173, 185, 209, 210, 211, 212, 213, 214, 215, 216, 217, 218, 219, 220, 223, 224, 227, 229, 230, 231, 232, 282; также см. толерантность и недискриминация ассимиляция (национальных меньшинств против их воли) 123, 125, 127, 166

Б БДИПЧ, Бюро по демократическим институтам и правам человека x, xi, xii, xxii, xxiii, 13, 14, 20, 21, 22, 23, 31-62, 63, 67, 68, 69, 71, 72, 74, 75, 90, 91, 123, 174, 177, 183, 184, 189, 192, 212, 215, 216, 221, 223, 224, 228, 238, 256, 259, 266, 267; также см. Бюро по свободным выборам беженцы — также см. миграция общее xvi, 90, 188, 189-192, 199, 211, 216, 236, 258, 267, 268, 276, 277, 279, 281 Конвенция о статусе беженцев 190, 191, 236, 268, 279 принцип невыдворения 258 безгражданство, лица без гражданства 146, 189-192; также см. гражданство беспристрастность — см. независимость судебной системы борьба с коррупцией — см. коррупция борьба с терроризмом — см. терроризм борьба с торговлей людьми — см. торговля людьми Бюро по свободным выборам xxii, 35, 37, 89, 159; также см. БДИПЧ

В Венский механизм xxi, 15-16 верховенство закона ix, x, xi, xiii, xviii, xix, xxii, xxiv, 4, 5, 6, 16, 26, 34, 35, 39, 52, 61, 62, 68, 74, 79, 85, 86, 87, 91, 94, 96, 97, 98, 100-108, 149, 156, 157, 204, 212, 214, 215, 225, 226, 261, 263, 266, 268, 271, 275-277 Верховный комиссар по делам национальных меньшинств — см. национальные меньшинства

Обязательства ОБСЕ в области человеческого измерения 285 Указатель

внутренние перемещенные лица — см. перемещенные лица; миграция военная служба, освобождение от прохождения — см. отказ от прохождения военной службы по политическим или религиозно-этическим соображениям возвращающиеся лица 189-192; также см. миграция воинская повинность 199 воссоединение семьи 137-146 Всеобщая декларация прав человека 12, 77, 102, 103, 126, 232 всеобщность прав человека 3, 29, 83 выборы общее xiii, xxii, 35, 36, 45, 50, 51, 54, 58, 72, 85, 86, 88-91, 92, 93, 94, 159, 164, 179, 191 наблюдение за выборами xxii, 14, 36, 37, 45, 54, 58, 89, 90, 91, 93, 159 обучение избирателей 54 выполнение обязательств — см. обязанность выполнять обязательства высшая мера наказания — см. смертная казнь высылка, произвольная 106, 114; также см. произвольный арест

Г гендер, гендерные проблемы — см. права женщин геноцид общее 216, 284 Конвенция о предупреждении преступления геноцида и наказания за него 216, 219, 283 гражданские и политические права общее 109-147, 148 Международный пакт о гражданских и политических правах xix, xx, 12, 77, 101-102, 103, 110, 118, 126, 209 гражданское общество xii, xiv, xxii, 5, 29-34, 57, 58, 59, 61, 87, 96, 97, 98, 99, 213, 214, 216, 229, 244, 253, 256, 271, 275; также см. НПО/неправительственные организации; правозащитники гражданство 146, 159, 176, 191, 221; также см. безгражданство, лица без гражданства гуманитарное право — см. международное гуманитарное право

Д демократия — также см. выборы общее ix, x, xi, xiii, xvi, xviii, xix, xxii, xxiii, xxiv, 4, 5, 6, 10, 16, 26, 34, 35, 38, 39, 40, 85, 86, 87, 91, 93, 95, 96, 97, 100, 102, 105, 134, 135, 149, 156, 162, 167, 206, 207, 212, 229, 271 демократические институты xxii, 5, 6, 36, 38, 39, 40, 58, 61, 62, 87, 91-100, 105, 136, 154, 159, 214, 260, 263, 268 политический плюрализм xviii, xix, xxiii, 3-4, 85, 91, 124, 149, 151, 156 право граждан принимать участие в управлении государством 36-37, 88-89 разделение властей 92 демонстрация — см. право на демонстрацию дети общее 139, 141, 184, 189, 199, 258 Конвенция о правах ребенка 199, 238, 246, 259 насилие в отношении детей 199, 246, 254 образование детей 121, 165, 180, 181, 189, 194, 195, 233, 243, 258 права детей 199, 238, 246 торговля детьми 47, 52, 199, 206, 238-259

286 Обязательства ОБСЕ в области человеческого измерения  Указатель

Факультативный протокол к Конвенции о правах ребенка, касающийся торговли детьми, детской проституции и детской порнографии 238, 246, 259 дискриминация — см. толерантность и недискриминация; рома и синти; права женщин доступ к информации — см. свобода выражения мнения, доступа к информации и свободные СМИ

Е Европейская конвенция о защите прав человека и основных свобод общее 12, 101, 118 Протокол № 6 к Конвенции о защите прав человека и основных свобод 110

Ж жилье — см. экономические и социальные права журналисты — см. свобода выражения мнения, доступа к информации и свободные СМИ; условия работы

З задержание, произвольное — см. произвольный арест заключение в тюрьму, произвольное — см. произвольный арест занятость — см. экономические и социальные права защита информации 252 защита местожительства 146 защита тайны переписки 146 здоровье — см. экономические и социальные права

И имущественные права 146-147, 182 институты по правам человека — см. омбудсмен и национальные институты по правам человека интеллектуальная собственность 126, 127, 136, 147 исламофобия — см. нетерпимость по отношению к мусульманам; толерантность и недискриминация исправление ситуации, эффективные средства — см. право на эффективные средства правовой защиты ищущие убежища 191, 214, 216

К Кодекс поведения, касающийся военно-политических аспектов безопасности 95, 105, 120, 200, 263, 266, 280, 282 Контактный пункт по вопросам рома и синти — см. рома и синти контакты между людьми xiii, 5, 15, 85, 137-146, 169-171 коренное население 189 коррупция 98-100, 150, 240, 250, 251, 261, 266, 267, 269, 278 ксенофобия 12, 52, 55, 56, 57, 68, 74, 75, 160, 173, 185, 196, 199, 209-233, 282; также см. толерантность и недискриминация

Обязательства ОБСЕ в области человеческого измерения 287 Указатель

культурные права/культурное наследие общее 135-136, 144, 147, 148, 149, 152-154, 167, 168, 169, 170, 180, 194, 197, 199, 225, 226 интеллектуальная и культурная жизнь 93, 135-136, 154 Международный пакт об экономических, социальных и культурных правах 101, 148, 209 свобода художественного творчества 135-136, 154

Л лица с ограниченными возможностями 153, 180, 198 лишение свободы, произвольное — см. произвольный арест

М массовая депортация 191, 210, 211, 212, 283; также см. толерантность и недискриминация медицинская практика, произвол 106, 111; также см. пытки и жестокое, бесчеловечное или унижающее достоинство обращение или наказание международное гуманитарное право общее xiii, 43, 191, 192, 210, 277, 281-284 Женевские конвенции 1949 года и дополнительные протоколы к ним 281-284 международное законодательство, общепризнанные принципы 108 международное законодательство, обязательства — см. обязательства согласно международному законодательству, противоречия в меньшинства — см. национальные меньшинства механизмы человеческого измерения общее 15-27 Венский механизм xxi, 15-16 Контртеррористическая сеть 24-26, 273 Механизм по оказанию государствам-участникам помощи в борьбе с торговлей людьми 22-24 Московский механизм xxi, 16-22 другие механизмы 26-27 мигранты, трудовые — см. рабочие-мигранты миграция 38, 137-146, 189-192, 193-198, 211, 217, 240, 242, 243, 260, 261, 269; также см. право искать убежище; ищущие убежища; перемещенные лица; свобода передвижения; беженцы многообразие культур 74, 228, 229, 266; также см. толерантность и недискриминация молодежь, молодые люди 49, 171, 183, 230, 233, 241, 245 Московский механизм xxi, 16-22 мусульмане — см. нетерпимость по отношению к мусульманам

Н наказание смертный приговор — см. смертная казнь унижающее достоинство — см. пытки и жестокое, бесчеловечное или унижающее достоинство обращение или наказание население, коренное — см. коренное население насилие в отношении детей — см. дети в отношении женщин — см. права женщин

288 Обязательства ОБСЕ в области человеческого измерения  Указатель

в отношении меньшинств — см. национальные меньшинства; толерантность и недискриминация наследие, культурное — см. культурные права/культурное наследие национализм, агрессивный 52, 68, 74, 210, 211, 212, 213, 214, 215, 220, 227, 229, 282; также см. толерантность и недискриминация национальные меньшинства общее x, xi, xiii, xix, xxiii, 4, 5, 6, 17, 62-71, 78, 79, 90, 94, 122, 125, 126, 127, 144, 154, 155-174, 185, 191, 204, 211, 214, 228, 244, 245, 266 Верховный комиссар по делам национальных меньшинств x, xxiii, 14, 22, 35, 40, 52, 62-71, 74, 161, 162, 165, 169, 212, 228, 266 НПО/неправительственные организации xxi, xxiii, 13, 14, 18, 23, 28, 29-34, 38, 40, 42, 43, 44, 46, 47, 50, 51, 54, 55, 56, 59, 65, 66, 72, 97-98, 102, 110, 113, 114, 117, 119, 125, 153, 160, 171, 172, 186, 188, 190, 216, 217, 218, 226, 233, 238, 241, 244, 246, 252, 253, 255, 256; также см. гражданское общество недискриминация — см. толерантность и недискриминация независимость судебной системы 103-104, 156 неприменимость принципа невмешательства xix, 6-7 нетерпимость по отношению к мусульманам xxii, 56, 57, 213, 218; также см. толерантность и недискриминация

О образование общее 11, 38, 49, 58, 93, 94, 95, 104, 105, 111, 113, 164, 165-169, 172, 183, 243, 244, 258 доступ к образованию 70, 138, 139, 144, 150, 154, 159, 176, 180-182, 194, 195, 197, 205, 221, 243, 244 образовательная деятельность, относящаяся к толерантности и недискриминации 217, 218, 225, 228, 229, 230; также см. толерантность и недискриминация образовательная деятельность, относящаяся к торговле людьми 241, 244, 248; также см. торговля людьми образовательная деятельность по правам человека 11-14, 30, 228, 230 право на образование 149, 154, 168 религиозное образование 121, 122, 123, 165-169; также см. свобода мысли, совести, религии или убеждений обращение, унижающее достоинство — см. пытки и жестокое, бесчеловечное или унижающее достоинство обращение или наказание обязанности государства — см. обязанность выполнять обязательства обязанность выполнять обязательства 9-11; также см. отступления, положения об обязательства согласно международному законодательству, противоречия в 108 объединение — см. свобода объединения ограничения прав человека — см. отступления, положения об омбудсмен и национальные институты по правам человека 53, 58, 61, 97, 208 отказ от прохождения военной службы по политическим или религиозно-этическим соображениям 119-120, 200; также см. свобода мысли, совести, религии или убеждений отмена смертной казни — см. смертная казнь отступления, положения об 77-80

Обязательства ОБСЕ в области человеческого измерения 289 Указатель

П передвижение, свобода — см. свобода передвижения перемещенные лица — также см. право искать убежище; ищущие убежища; миграция; беженцы общее 188, 189-192, 199, 211, 245, 281 Руководящие принципы (ООН) по вопросу о перемещении лиц внутри страны 192, 216 политические партии — см. свобода объединения политический плюрализм — см. демократия права человека как права, данные от рождения xx, 86 права женщин защита от всех форм насилия 57, 184, 205, 206, 235-236, 244, 246, 254, 284 Конвенция о ликвидации всех форм дискриминации в отношении женщин 204, 209 План действий ОБСЕ по гендерным вопросам 206, 236 План действий ОБСЕ по поддержке гендерного равенства 57, 70, 75, 192, 207, 236, 284 равноправие мужчин и женщин 57-58, 70, 75, 176, 179, 192, 204-209, 243, 244, 246 сексуальная эксплуатация 195, 205, 206, 235, 237, 240, 245, 247, 248, 254; также см. торговля людьми права трудящихся 151-152 право искать убежище 191, 258, 263, 264, 268, 273, 278, 279, 280 право на демонстрацию 124; также см. свобода собрания право на жизнь — см. смертная казнь право на забастовку 124, 152; также см. свобода объединения право на компенсацию 105, 107, 115; также см. произвольный арест право на общение 127; также см. свобода выражения мнения, доступа к информации и свободные СМИ право на самоопределение 83 право на справедливое судебное разбирательство 115-117 право на эффективные средства правовой защиты 30, 31, 116, 117-119, 142, 159, 176, 180, 187, 219, 221 правовое государство — см. верховенство закона правозащитники 29-34 Представитель по вопросам свободы средств массовой информации x, xxiii, 35, 52, 68, 71- 76, 134-135, 169, 192, 212, 228, 266, 267; также см. свобода выражения мнения, доступа к информации и свободные СМИ презумпция невиновности — см. право на справедливое судебное разбирательство преследование 185, 192, 209, 235-236, 258; также см. толерантность и недискриминация преступления на почве ненависти xxii, 55, 74, 173-174, 187-188, 213, 215, 217, 218, 221, 222, 223, 224, 229, 231; также см. толерантность и недискриминация привлечение к военной службе в принудительном порядке — см. воинская повинность принудительный труд 85, 151, 240, 245; также см. торговля людьми принцип невмешательства — см. неприменимость принципа невмешательства произвольный арест общее 106, 114-115 Кодекс поведения должностных лиц по поддержанию правопорядка (ООН) 106, 111, 200 Минимальные стандартные правила обращения с заключенными (ООН) 106, 111, 200 проституция 205, 235, 237, 238, 246, 259; также см. права женщин; дети профессиональная подготовка 183, 193, 194, 198, 243 профсоюзы 32, 85, 93, 123, 124, 125, 151, 152, 171, 197; также см. свобода объединения

290 Обязательства ОБСЕ в области человеческого измерения  Указатель

психиатрическая или другая медицинская практика, произвол 106, 111; также см. пытки и жестокое, бесчеловечное или унижающее достоинство обращение или наказание пытки и жестокое, бесчеловечное или унижающее достоинство обращение или наказание общее 77, 78, 106, 107, 111-114, 115, 201 Европейская конвенция по предупреждению пыток и бесчеловечного или унижающего достоинство обращения или наказания 113 Комитет ООН против пыток 111 Конвенция против пыток и других жестоких, бесчеловечных или унижающих достоинство видов обращения и наказания 106, 111, 113 Специальный докладчик ООН по проблеме пыток и другого жестокого бесчеловечного или унижающего достоинство обращения или наказания 113

Р рабочие-мигранты 193-198 рабство 239, 240, 245 равноправие мужчин и женщин — см. права женщин равноправие наций — см. право на самоопределение разделение властей — см. демократия расизм — см. толерантность и недискриминация религиозное образование — см. образование рома и синти общее xxiii, 12, 45-52, 53, 54, 55, 69, 70, 75, 160, 173, 174-189, 209, 220-221 Контактный пункт по вопросам рома и синти xxiii, 45-52, 174, 177 План действий по улучшению положения рома и синти в регионе ОБСЕ 47-56, 69-70, 75, 178-189, 220-221

С свобода вероисповедания — см. свобода мысли, совести, религии или убеждений свобода выбора места жительства — см. свобода передвижения свобода выражения мнения, доступа к информации и свободные СМИ общее 52, 68, 71-76, 79, 86, 103, 125-136, 177, 226, 231-233, 277 журналисты — см. условия работы право знать свои права и действовать в соответствии с ними xv, 29, 30, 31, 100 Представитель по вопросам свободы средств массовой информации x, xxiii, 35, 52, 68, 71- 76, 134-135, 169, 192, 212, 228, 266, 267 свобода слова/СМИ xxiii, 38, 45, 71-76, 125-136, 169-171, 231-233 свобода доступа к информации — см. свобода выражения мнения, доступа к информации и свободные СМИ свобода мысли, совести, религии или убеждений общее xvi, 3, 9, 29, 52, 68, 74, 109, 120-123, 147, 155, 203, 212, 215 отказ от прохождения военной службы по политическим или религиозно-этическим соображениям 119-120, 200 религиозное образование — см. образование свобода объединения 30, 31, 93, 103, 121, 123-125, 126, 127, 147, 152 свобода передвижения 137-146, 246; также см. миграция свобода слова — см. свобода выражения мнения, доступа к информации и свободные СМИ свобода СМИ — см. свобода выражения мнения, доступа к информации и свободные СМИ свобода собрания 90, 121, 123-125, 126

Обязательства ОБСЕ в области человеческого измерения 291 Указатель

свобода совести — см. свобода мысли, совести, религии или убеждений свобода убеждений — см. свобода мысли, совести, религии или убеждений свобода художественного творчества — см. культурные права/культурное наследие свободные потоки информации — см. свобода выражения мнения, доступа к информации и свободные СМИ сексуальная эксплуатация — см. дети; права женщин; торговля людьми семейная жизнь, уважение 146 синти и рома — см. рома и синти смертная казнь общее 106, 110, 274, 276 Второй Факультативный протокол к Международному пакту о гражданских и политических правах 110 Протокол № 6 к Конвенции о защите прав человека и основных свобод 110 социальное обеспечение — см. экономические и социальные права социальные права — см. экономические и социальные права социальная справедливость — см. экономические и социальные права суд, независимый — см. независимость судебной системы судебная система, независимость — см. независимость судебной системы

Т творчество — см. культурные права/культурное наследие территориальный экспансионизм 210; также см. толерантность и недискриминация терроризм общее xxii, 24-26, 34, 36, 61-62, 63, 66, 73, 74, 86, 92, 213, 231, 261, 261-280 Антитеррористическое подразделение (АТП) ОБСЕ 24-26, 274 Бухарестский план действий по борьбе с терроризмом 61, 74, 192, 212, 228, 265-268, 276, 278-279, 280 Конвенция Организации Объединенных Наций о борьбе с финансированием терроризма 267, 278 Контртеррористическая сеть 24-26, 273 Хартия ОБСЕ о предупреждении терроризма и борьбе с ним 228, 231, 269-271, 276-277, 279 толерантность и недискриминация общее xiii, xxii, 12, 27, 39, 52-57, 68, 72, 74, 75, 86, 121, 123, 154, 156, 160, 162, 167, 171, 185- 188, 196, 197, 198, 203-233, 266, 271 Международная конвенция о ликвидации всех форм расовой дискриминации 185, 219, 221 торговля людьми общее xvii, 22-24, 47, 52, 58-61, 62, 199, 205, 206, 237-259, 271 Конвенция ООН против транснациональной организованной преступности 238, 239, 240, 246, 249, 250, 255, 260, 267 Механизмы перенаправления жертв торговли людьми на национальном уровне 59, 255, 256, 259 План действий ОБСЕ по борьбе с торговлей людьми 22, 23, 47, 59, 242-246, 247, 248, 255 Протокол ООН против незаконного ввоза мигрантов по суше, морю и воздуху 240 Протокол о предупреждении и пресечении торговли людьми, особенно женщинами и детьми, и наказании за нее 238, 239, 240, 246, 249, 255

292 Обязательства ОБСЕ в области человеческого измерения  Указатель

тюрьма обращение с заключенными, права заключенных 106-108, 111, 112, 113, 115, 200-201; также см. пытки и жестокое, бесчеловечное или унижающее достоинство обращение или наказание реформирование учреждений исполнения наказаний 62, 104

У убежище — см. право искать убежище; ищущие убежища уголовный процесс 62, 116; также см. право на справедливое судебное разбирательство условия работы общее 197 журналистов 71, 128-135 Устав ООН 5, 10, 28, 83, 87, 108, 157, 262, 264, 270

Х Холокост 180, 216, 230; также см. толерантность и недискриминация

Ц цыгане — см. рома и синти

Ч частная жизнь, уважение 146 чрезвычайное положение 21, 40, 77-80, 111, 133; также см. отступления, положения об

Э экономические и социальные права общее 49, 149-152 занятость 49, 138, 139, 149, 150, 151, 159, 176, 182, 183, 193, 194, 205, 221, 243, 266 здоровье 49, 53-54, 149, 150, 151, 176, 184, 189, 197, 221, 257 жилье 48, 139, 149, 159, 176, 182, 189, 194, 197, 198, 221, 258 Международный пакт об экономических, социальных и культурных правах 101, 148, 209 социальная справедливость 4, 149 социальное обеспечение 138, 149, 194, 195 экспансионизм, территориальный — см. территориальный экспансионизм экстремизм 5, 52, 68, 74, 212, 213, 214, 215, 216, 220, 229, 263, 266; также см. толерантность и недискриминация электронные средства связи, защита 146 этнические чистки 191, 210, 211, 212, 216, 283; также см. толерантность и недискриминация

Ю юристы, независимость — см. независимость судебной системы

Обязательства ОБСЕ в области человеческого измерения 293