ࡱ>    u  kjbjb O~]zp  8 $ =hN N "p  >d@4=======,_?SA= tx|"tt=  8t8  R = r rr\rt=:;0 p "= < <" Memorandum to the dutch Presidency of the European Union: July December 2004 1. ILGA-Europes work ILGA-Europe, the European Region of the International Lesbian and Gay Association, is a European NGO with more than 200 national and local lesbian, gay, bisexual and transgender (LGBT) member organisations in 40 European countries. ILGA-Europe fights for human rights and against discrimination on grounds of sexual orientation, gender expression and gender identity at European level. One of ILGA-Europes main objectives is to work towards an equal and inclusive Europe which respects fundamental rights as the basis of democracy and secures that everyone can live in equality and free from any kind of discrimination. Millions of people in Europe still experience discrimination on the grounds of their sexual orientation, gender identity or gender expression. LGBT persons are still denied the fundamental right to found a family and to marry in some Member States and accession countries. The non-recognition by other Member States of same-sex couples legally recognised in their state of origin is an unacceptable obstacle for LGBT persons in exercising their right to free movement within the Union, one of the most basic and principal rights of EU citizens. 2. Legal context of the European Unions actions to combat sexual orientation discrimination Although discussions on discrimination based on sexual orientation in the European Union have been taking place since 1984, the most significant developments in this area occurred after 1994 following the European Parliament report on Equal Rights for homosexuals and lesbians in the EC. The Roth report contributed significantly to raising this issue as relevant to the EC and paved the way for Member States to decide upon an amendment to the Treaty. Article 13 TEC, introduced by the Amsterdam Treaty in 1997 created for the first time an explicit legal competence for the Community to take action to combat sexual orientation discrimination. In the Treaty of the European Union, the respect for human rights, including the principle of equal treatment, was also given a higher status and priority for the Member States than ever before. Following this legal development, in November 2000 the Council of the European Union adopted the Framework Directive on Equal Treatment in Employment and Occupation. By forbidding discrimination in employment and occupation on grounds of sexual orientation, it constitutes the first European Union legislation to fight the discrimination which LGBT persons face in an important social and economic area of their lives. At the same date, a Community Action Programme to Combat Discrimination for the period 2001-2006 was approved with a budget of 100 million euros in order to support activities that fight against discrimination on grounds of racial or ethnic origin, religion or belief, disability, age, or sexual orientation. The European Unions Charter of Fundamental Rights, adopted in the European Council of Nice in December 2000, came to embody what is now clear to all Member States: that fighting for human rights and against all forms of discrimination, including on grounds of sexual orientation, are fundamental values of the European Union. ILGA-Europe would like to draw to the attention of the Dutch Presidency of the European Union some key areas that affect lesbians, gays, bisexuals and transgender people at a European level which can be progressed through concrete actions from July to December 2004. 3. Enlargement At the Copenhagen EU Summit in December 2002 the accession of new member states was planned by the European Union. On 1 May 2004 ten new member states have join the European Union. The Dutch presidency will have to deal with new candidates: Bulgaria, and Romania will accede in 2007, Turkey accession negotiations will take place during the December summit and Croatia is applying for membership. From an LGBT point of view, the readiness for accession depends on two criteria: the elimination of all significant discrimination on grounds of sexual orientation in the penal code; and the transposition into national legislation of the EUs anti-discrimination acquis. The first criterion has been met by most accession countries. Progress with meeting the second criteria is much more limited. However, both these criteria are binding requirements for the accession of all countries. ILGA-Europe urges the Dutch Presidency to place pressure on all accession countries to fully comply with the EUs accession criteria; and to closely monitor the transposition process. The Dutch Presidency should ensure that any attempts by a particular country to dilute the effectiveness of the anti-discrimination legislation are nullified. Furthermore, as the respect of principles of liberty, democracy, respect for human rights and fundamental freedoms and the rule of law is a requirement for the application of a new member state, ILGA-Europe calls on the Dutch Presidency to monitor the respect of human rights with regard to sexual orientation, gender expression and gender identity. The Council will take the decision in December 2004 on the accession of Turkey to the EU. Before this date, the Presidency is asked to ensure changes in the Turkish Penal Code in order to amend articles that discriminate against LGBT people. ILGA-Europe urges the Dutch Presidency to ensure that the Bulgarian government guarantees an equal age of consent for sexual intercourse in same sex and opposite sex relationships. 4. Constitution ILGA-Europe welcomes the agreement to sign the EU Constitution by the EU member states reached on the 17-18 June 2004. This text offers a greater protection of human rights in the EU. The preamble of the Constitution states that equality and human rights are central values of the EU and it includes the Charter of Fundamental Rights of the Union, which will be judiciable in the European Court of Justice (ECJ). However, to enter into force, the Constitution needs to be ratified by the member states in accordance with their constitutional arrangements. ILGA-Europe urges the Dutch presidency to call on all member states to ratify the Constitution as soon as possible. ILGA-Europe calls on the Dutch presidency to pay due regard to the rights enshrined in the Constitution in its decisions and its actions. ILGA-Europe urges the Dutch Presidency to encourage the EU institutions to start implementing the Constitution in their decision before its entry into force. In particular this should be the case of mainstreaming equality (addressed further in the section on equality). The European Union must also resolve the ambivalence surrounding its commitment to the regional human rights standards established by the Council of Europe. ILGA-Europe urges the Dutch Presidency to initiate the process of accession to the European Convention on Human Rights as stated in the Constitution. ILGA-Europe urges the Dutch Presidency to take the initiative and to call on all Member States and countries candidates for accession to the EU to ratify Protocol 12 of the ECHR and the Revised Social Charter. 5. Human Rights agenda ILGA-Europe welcomes the position of the Dutch Presidency on the human rights agenda. One representative of the Dutch presidency (Anneke Adema) highlighted that the government wanted to be active, proactive and interactive in relation to human rights and that implementation is a key word. The following actions are requested from the Dutch Presidency to give those words a reality for LGBT people. The Dutch Presidency should is asked to take a political lead in clarifying the responsibility of the EU in the protection and promotion of human rights. This would mean developing a comprehensive approach on how to mainstream respect for human rights in all EU policies and activities. In particular, human rights clauses need to be included in all agreements with third countries and their respect have to be properly monitored. ILGA-Europe urges the Dutch Presidency to raise its concerns for human rights with the third countries with which summits are organised during its presidency. A considerable proportion of these countries still discriminate against LGBT people, criminalise consenting same sex relationships and are openly breaching internationally recognised human rights standards (e.g. the UN International Covenant on Civil and Political Rights or the European Convention on Human Rights). ILGA-Europe will be sending information, when possible, to support those claims and expects that the Presidency will take the lead in defending the human rights of LGBT people in the world. In relation to the future human rights agency, ILGA-Europe calls on the Dutch Presidency to support the independence of the agency, proper financial and staff resources for the agency, a close involvement of NGOs and a mandate that would cover the key functions described in the UN Paris Principles: monitoring human rights, education and awareness raising, investigation, litigation and research. A proper debate needs to take place on this institution including all key players representing civil society and should include proper consultation as recommended by the Commission Communication COM (2002) 277 Final. ILGA-Europe urges the Dutch Presidency to follow up the work started by the Irish Presidency in relation to the protection of human rights defenders. ILGA-Europe urges the Presidency to consider the particularly vulnerable situation of LGBT human rights activists. This has been highlighted by the Special Representative of the UN Secretary-General on Human Rights Defenders. In her report to the Human Rights Commission in January 2001, she stated: Greater risks are faced by defenders of the rights of certain groups as their work challenges social structures, traditional practices and interpretation of religious precepts that many have been used over long periods of time to condone and justify human rights groups and those who are active on issues of sexuality especially sexual orientation and reproductive rights. These groups are often very vulnerable to prejudice, to marginalization and to public repudiation, not only by State forces but other social actors. This is the case for those detained and tortured on the grounds of their gender identity or sexual orientation as in the case for the Uzbek rights defender Ruslan Sharipov detained in accordance with legislation contravening international standards. 6. Equality On the basis of a green paper the Commission has opened in June a wide consultation on the future of EU anti-discrimination policies which will last until the end of August 2004. The Dutch Presidency will be in charge at the end of November of a conference to discuss the outcome of the consultation. In this climate of revising the equality agenda of the EU, ILGA-Europe, joins with other social NGOs (as a member of the Social Platform) and suggests that the Dutch Presidency initiate the following actions. The Dutch Presidency is urged to use the Green Papers consultation exercise to push for an ambitious EU anti-discrimination programme. ILGA-Europe call on the Dutch Presidency to use all possible occasions to call on all the Member States to fully implement the Framework Directive on Equal Treatment in Employment and Occupation  in law and in fact, and to stress the importance of promoting a society based on equality for all. Further steps are required to reinforce the right to equality as stated in Article 13 TEC. An equality hierarchy continues to exist, with different levels of protection for different grounds of discrimination. Gender identity, gender expression and sexual orientation discrimination are receiving a lower level of protection than, for example, discrimination based on racial or ethnic origin. This ignores the overlapping nature of discrimination in many instances. All grounds of discrimination must be treated and fought against equally. The Dutch Presidency is asked to push for harmonisation of anti-discrimination legislation on all grounds to ensure an equal degree of protection. ILGA-Europe calls on the Dutch Presidency to actively raise awareness and promote a mainstreaming approach of equality in accordance with Article III-3 of the Constitution within all relevant policies, programme and initiatives. In this process it is important that a body like the human rights agency be given the powers and resources for collecting and monitoring relevant data on the situation of LGBT people in the EU. It is absolutely crucial to provide strong mechanisms for consultation with the groups affected by endemic discrimination at a societal level. The Dutch Presidency needs to push for the extension of the Community Action Programme to combat discrimination since its three objectives will still be relevant beyond 2006. ILGA-Europe urges the Dutch Presidency to move forward for rapid adoption of the proposed Directive on gender equality for goods and services and to call for specific reference to discrimination on the ground of gender identity and gender expression in the directive on gender equality. ILGA-Europe requests to be closely involved in the preparation of the anti-discrimination conference of November 2004. ILGA-Europe requests to be invited to the Ministerial Gender Equality Conference on the 6-7 July 2004. 7. Asylum and immigration The Council Directive on minimum standards for the qualification and status of the refugee was agreed on the 27 April 2004. ILGA-Europe welcomes the reference to gender-specific acts which, when read in relation to the definition of gender by the European Court of Justice, includes protection of refugees persecuted (or fearing persecution) on grounds of their gender identity. ILGA-Europe also welcomes the reference to sexual orientation as a characteristic of a social group for the purpose of the implementation of the Geneva Convention relating to the status of Refugees of 28 July 1951. ILGA-Europe calls on the Dutch Presidency to ensure that these minimum standards are incorporated in the national legislation of all EU member states. 8. Lisbon Agenda At the presentation of the priorities of the Dutch presidency to the European Policy Centre, HE Tom de Bruijn mentioned how it will contribute to the Mid-term review of the Lisbon Process (under Luxembourgs Presidency). ILGA-Europe was disappointed by the lack of references to the social side of this agenda, limiting its concerns to the legislative burden on different industries and innovation. With regard to two key components of the Social Policy Agenda, the Employment and Social Inclusion Strategies, ILGA-Europe notes that the need to combat discrimination based on sexual orientation and gender identity has so far been ignored by almost all Member States in their National Action Plans. The inclusion of a specific reference to lesbian, gay, bisexual and transgender persons in the Employment Guidelines, and in the Social Inclusion Strategy Common Objectives, would be an important step in rectifying this situation. ILGA-Europe therefore calls upon the Dutch presidency to include in its contribution to the mid-term review of the Lisbon process the following recommendations: For specific references to lesbian, gay, bisexual and transgender persons to be included in the Employment Guidelines and Common Objectives. For all Member States to adopt strategies for combating sexual orientation and gender identity discrimination in their Employment Strategy and Social Inclusion Strategy National Action Plans. 9. European Neighbourhood Policy The enlargement of the Union has moved the borders farther to the east and created new neighbours for the Union. The Commission has announced a new initiative to engage these new neighbours on a wide range of issues.  To date the focus of the new initiative appears to be on trade and economic policy. However, the Union should not be rewarding any state that does not make a commitment to the Unions standards on human rights. ILGA-Europe urges the Dutch Presidency to highlight the need to ensure that human rights concerns and standards need to be a major factor in any new agreement signed with the new neighbours. This is especially important for the LGBT citizens of these countries. In order to improve the situation of LGBT people in the new neighbour states the Union should also designate part of the funds available through the European Initiative for Democracy and Human Rights (EIDHR) for projects that deal with LGBT rights. This would fit in with the recently announced revision of the EIDHR programming and the increase in funding for 2004 to support the new theme of support measures for victims of human rights abuses. The Commission has also increased funding for the theme of support to development and consolidation of democracy and the rule of law, and respect for human rights and fundamental freedoms. ILGA-Europe urges the Dutch Presidency to ensure that funding is directed at projects involving LGBT people and protecting their human rights. It would allow for some of the LGBT groups in this region to receive funding for capacity building and to strengthen the role of civil society in these states. Executive Summary ILGA-Europe urges the Dutch Presidency to play an essential role in supporting: 3. Enlargement 3. 1. Respect of the acquis communautaires in the enlargement process. 3.2. Respect for human rights and democracy in all candidate countries. 3.3. Monitoring the situation of LGBT people in Bulgaria, Turkey and Romania. 4. Constitution 4.1. Ratification of the Constitution at national level. 4.2. Implementation of rights enshrined in the Constitution in decision and action. 4.3. The EUs accession to the European Convention on Human Rights (including Protocol 12) and the revised European Social Charter. 5. Human Rights 5.1. Mainstream respect for human rights in all EU policies and activities. 5.2. Introduction of human rights clauses in all agreements with third countries and proper monitoring of its respect. 5.3. Expression of concerns for human rights with the third countries with which summits are organised during the presidency. 5.4. The development of a strong and independent human rights agency. 5.5. Increase the protection of LGBT human rights defenders. 6. Equality 6.1. The Green Papers consultation exercise to push for an ambitious EU anti-discrimination programme. 6.2. Full implementation of the Framework Directive on Equal Treatment in Employment and Occupation  in law and in fact. 6.3. Harmonisation of anti-discrimination legislation on all grounds to ensure an equal degree of protection. 6.4. Promotion of a mainstreaming approach of equality in accordance with Article III-3 of the Constitution. 6.5. Extension of the Community Action Programme to combat discrimination beyond 2006. 6.6. Inclusion of specific reference to discrimination on the ground of gender identity and gender expression in the directive on gender equality. 6.7. Invitation of ILGA-Europe to the meetings and conferences on equality. 7 Asylum and immigration 7.1. Ensuring that minimum standards for the qualification and status of the refugee are incorporated in the national legislation of all EU member states. 8. Lisbon Agenda 8.1. Inclusion of specific references to lesbian, gay, bisexual and transgender persons in the Employment Guidelines and Common Objectives. 8.2. For all Member States to adopt strategies for combating sexual orientation and gender identity discrimination in their Employment Strategy and Social Inclusion Strategy National Action Plans. 9. European Neighbourhood Policy 9.1. Ensuring that human rights concerns and standards are a major factor in any new agreement signed with the new neighbours. This is especially important for the LGBT citizens of these countries. 9.2. Ensuring that funds available through the European Initiative for Democracy and Human Rights (EIDHR) include projects that deal with LGBT rights. 9.3. Ensuring that Commissions funding on development is directed at projects involving LGBT people and protecting their human rights.  For an outline of the recognition or not of same-sex marriage in other member states of the EU see EU Network of Independent Experts on Fundamental Rights Avis sur la possibilit de la reconnaissance, par chaque Etat membre, du mariage homosexuel ouvert aux Pays-Bas et en Belgique et le rle de lexception dordre public international du droit international prive de chaque tat membre Avis du 30 Juin 2003. CFR-CDF. Avis2-2003.  Author: Claudia Roth. EP Doc. Nr. A3-0028/1994.  Without prejudice to the other provisions of this Treaty and within the limits of the powers conferred by it upon the Community, the Council, acting upon unanimously on a proposal from the Commission and after consulting the European Parliament, may take appropriate action to combat discrimination based on sex, racial or ethnic origin, religion or belief, disability, age or sexual orientation. (emphasis added)  Article 6 (1) states: The Union is founded on the principles of liberty, democracy, respect for human rights and fundamental freedoms, and the rule of law, principles which are common to the Member States. And Article 6 (2) states: The Union shall respect fundamental freedoms, as guaranteed by the European Convention for the Protection of Human Rights and Fundamental Freedoms  Council Directive 2000/78/EC of 27 November 2000, OJ L303/16. Prohibits discrimination on the grounds of religion or belief, disability, age and sexual orientation.  Article II- 21. Non-discrimination. 1. Any discrimination based on ground such as sex, race, colour, ethnic or social origin, genetic features, language, religion or belief, political or any other opinion, membership of a national minority, property, birth, disability, age or sexual orientation shall be prohibited. (emphasis added)  Respectively, these are: Cyprus, the Czech Republic, Estonia, Hungary, Latvia, Lithuania, Malta, Poland, Slovakia and Slovenia.  Homosexuality is regarded as provocation; crimes against LGBT people can be subject to a reduced punishment. The age of consent for same sex relationships is unclear (usually 18) whereas the age to marry for a woman is 15 and for a man is 17.  Article II-7.2 states: The Union shall seek accession to the European Convention for the Protection of Human Rights and Fundamental Freedoms.  Only six countries that have ratified Protocol 12 (30.03.04) i.e. Bosnia-Herzegovina, Cyprus, Czech Republic, Georgia, San Marino and Serbia-Montenegro.  EU Human Rights network, European Parliament, 9th June 2004.  At the Brussels European Council on 13 December 2003 a decision was taken on the seats of certain EU offices and agencies. In the same context, the Representatives of the Member States meeting within the European Council, stressing the importance of human rights data collection and analysis with a view to defining Union policy in this field, agreed to build upon the existing European Monitoring Centre on Racism and Xenophobia and to extend its mandate to become a Human Rights Agency to that effect. The Commission also agreed and indicated its intention to submit a proposal to amend Council Regulation 1035/97 of 2 June 1997 in that respect.  LIENHYPERTEXTE "http://register.consilium.eu.int/pdf/en/04/st05/st05381.en04.pdf" http://register.consilium.eu.int/pdf/en/04/st05/st05381.en04.pdf .  A/Res/48/134.  Communication from the Commission Consultation document: Towards a reinforced culture of consultation and dialogue_ Proposal for general principles and minimum standards for consultation of interested parties by the Commission COM (2002) 277 final.  E/CN.4/2001/94, Paragraph 89 (g).  He is detained under Article 120 of the Criminal Code of the Republic of Uzbekistan, which punishes consensual same sex relationships and Article 127 and 128 concerning intercourses with minors. Article 120 of the Uzbek Criminal Code violates well-known international standards like the ICCPR.  Council Directive 2000/78/EC of 27 November 2000, OJ L303/16. Prohibits discrimination on the grounds of religion or belief, disability, age and sexual orientation.  The equality hierarchy has been criticised by the European Parliament on several occasions (a) Resolution adopted on 5 October 2000, OJ C 178, 22.6.2001, p. 184, (b) Resolution adopted on 15 January 2003, T5-0012/2003, (c) Resolution adopted on 4 September 2003, T5-0376/2003 (d) Report adopted on 14 January 2004, T5-0023/2004.  Article III-3 states In defining and implementing the policies and activities referred to in this Part, the Union shall aim to combat discrimination based on sex, racial or ethnic origin, religion or belief, disability, age or sexual orientation.  Those are namely: (a) to improve the understanding of issues related to discrimination, (b) to develop the capacity to tackle discrimination effectively and (c) to promote the values underlying the fight against discrimination see http://europa.eu.int/comm/employment_social/fundamental_rights/prog/glance_en.htm.  Article 9 (f) defines acts of persecution as acts of a sufficient serious nature which constitutes a violation of basic human rights and which are of a gender-specific nature.  Case C-13/94 P v S and Cornwall County Council.  Article 10 (d).  HE Tom de Bruijn The priority of the Dutch Presidency EPC, 9 June 2004.  Communication from the Commission European Neighbourhood Policy Strategy Paper COM (2004) 373 Final.  Council Directive 2000/78/EC of 27 November 2000, OJ L303/16. Prohibits discrimination on the grounds of religion or belief, disability, age and sexual orientation.     PAGE  PAGE 11 Avenue de Tervueren 94 Tel.: +32-2 732 54 88 B-1040 Brussels, Belgium Fax: +32-2 732 51 64 info@ilga-europe.org www.ilga-europe.org ILGA-Europe enjoys consultative status with the Council of Europe and is a member of the Platform of European Social NGOs. ILGA-Europe receives financial support from the Stonewall Lobby Group (UK). 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