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HRW: Draft constitution of Kyrgyzstan undermines human rights norms

The draft constitution submitted to the Parliament of Kyrgyzstan on February 9, 2021 undermines human rights norms and weakens checks and balances necessary to prevent abuses of power. The international human rights organization Human Rights Watch said in a statement, urging the government of the republic to withdraw problematic draft Basic Law.

As the human rights defenders note, the timetable announced by President Sadyr Japarov envisages limited consultation and parliamentary debate on the draft before it is put to a national referendum on April 11.

Kyrgyzstan’s caretaker parliament should postpone consideration of the draft until after a new parliament has been elected to allow for a full deliberative and consultative constitutional reform process.

«The current draft constitution does not reflect the high human rights standards Kyrgyzstan says it aspires to,» said Syinat Sultanalieva, Central Asia researcher at Human Rights Watch. «Kyrgyzstan should take the time it needs to prepare a constitution that protects the rights of everyone in a way that complies with international human rights standards.»

In the opinion of the Human Rights Watch, provisions in the draft constitution regarding the role of the executive and of the legislature erode the constitution’s current system of checks and balances. Article 70 provides the president with powers previously exclusive to the parliament, such as initiating new laws and referendums, in addition to the existing power of veto.

Articles 76 to 79 make it possible for the president to indirectly recall the mandates of members of parliament, although a separate law would be needed to clarify this. If the president obtains the support of a majority of parliament members, the president can strip a member’s immunity from criminal prosecution, creating the conditions for political pressure on members who are critical of the ruling party or the president.

The draft constitution would also transfer power from the parliament to the president to appoint members of the Cabinet, and appoint and dismiss judges, the prosecutor general, the chairman of the National Bank and of the Accounting Chamber, as well as nominate and dismiss half of the Central Election Committee, undermining their independence from the executive.

The constitution also grants the national kurultai — a traditional people’s council with delegates from all regions of the country — significant authority, much of which duplicates parliament’s functions. This body could also suggest removing Cabinet members and leaders of other government institutions from office. The kurultai could nominate its own representatives to the Council for Justice Affairs, which appoints judges. The kurultai would also have new authority to propose laws to the parliament. The draft does not specify how members of the kurultai are chosen.

As the human rights activists stress, how the country organizes its political system is a political choice to be made by the citizens. However, it is vital for decision-making by relevant institutions to be transparent and legitimate, and for the introduction of new structures, such as a people’s council, not to offer opportunities for abuse of power.

Several individual provisions in the draft constitution directly violate international human rights standards and should be revised.

Human Rights Watch

Article 10 would prohibit activities, public events, and dissemination of information contrary to «moral values and the public consciousness of the people of Kyrgyzstan,» ostensibly with the aim of protecting children. However, such a provision is incompatible with fundamental human rights to freedom of expression, assembly, and association.

The draft fails to protect the right to peaceful assembly in line with international human rights norms and includes a requirement to obtain advance permission from the authorities to hold peaceful assemblies.

The draft constitution includes a provision imposing unnecessary, burdensome financial reporting requirements on nongovernmental organizations, trade unions, and political parties that is incompatible with rights to freedom of association and expression.

As the Human Rights Watch notes, the manner and timing of the recent constitutional reform process raises serious concerns about Kyrgyzstan’s leadership’s commitment to protecting human rights and the rule of law.

Kyrgyzstan’s international partners, in particular the European Union, its member states, the US, and the UK, should publicly urge the Kyrgyz government to seek international expert advice on the draft constitution from the Venice Commission, to comply with procedures regarding the adoption of the new constitution in line with national and international norms.

«President Japarov has pledged to uphold and respect human rights,» Syinat Sultanalieva said. «A new constitution lays the foundation for these actions, so it is vitally important for this document, and the process of preparing it, to uphold beyond all doubt the highest standards of human rights and the rule of law. It is in his government’s interest for this to take place.»

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