Defamation of religion is an issue that was repeatedly addressed by some member states of the United Nations
(UN) from 1999 until 2010. Several non-binding resolutions were voted
on and accepted by the UN condemning "defamation of religion". The
motions, sponsored on behalf of the Organization of the Islamic Conference (OIC), now known as the Organisation of Islamic Cooperation,
sought to prohibit expression that would "fuel discrimination,
extremism and misperception leading to polarization and fragmentation
with dangerous unintended and unforeseen consequences". Religious
groups, human rights activists, free-speech activists, and several
countries in the West condemned the resolutions arguing they amounted to
an international blasphemy law.
Critics of the resolutions, including human rights groups, argued that
they were used to politically strengthen domestic anti-blasphemy and
religious defamation laws, which are used to imprison journalists,
students and other peaceful political dissidents.
From 2001 to 2010 there was a split of opinion, with the Islamic bloc and much of the developing world supporting the defamation of religion resolutions, and mostly Western democracies
opposing them. Support waned toward the end of the period, due to
increased opposition from the West, along with lobbying by religious,
free-speech, and human rights advocacy groups. Some countries in
Africa, the Pacific, and Latin America switched from supporting to
abstaining, or from abstaining to opposing. The final "defamation of
religions" resolution in 2010, which also condemned "the ban on the
construction of minarets of mosques" four months after a Swiss referendum introduced such a ban, passed with 20 supporting, 17 opposing, and 8 abstaining.
In 2011, with falling support for the defamation of religion
approach, the OIC changed their approach and introduced a new resolution
on "Combating intolerance, negative stereotyping and stigmatization of,
and discrimination, incitement to violence and violence against,
persons based on religion or belief"; it received unanimous support.
The UN Human Rights Committee followed this in July 2011 with the adoption of General Comment 34 on the International Covenant on Civil and Political Rights
(ICCPR) 1976 that binds signatory countries. Concerning freedoms of
opinion and expression, General Comment 34 made it clear that
"Prohibitions of displays of lack of respect for a religion or other
belief system, including blasphemy laws, are incompatible with
the Covenant". General Comment 34 makes it clear that countries with
blasphemy laws in any form that have signed the ICCPR are in breach of
their obligations under the ICCPR.
United Nations resolutions
Defamation
of religion resolutions were the subject of debate by the UN from 1999
until 2010. In 2011, members of the UN Human Rights Council found
compromise and replaced the "defamation of religions" resolution with
Resolution 16/18, which sought to protect people rather than religions
and called upon states to take concrete steps to protect religious
freedom, prohibit discrimination and hate crimes, and counter offensive
expression through dialogue, education, and public debate rather than
the criminalization of speech. Resolution 16/18 was supported by both
OIC member countries and Western countries, including the United States.
1999
In April 1999, at the urging of the Organisation of the Islamic Conference (OIC), Pakistan brought before the United Nations Commission on Human Rights a resolution entitled "Defamation of Islam". The purpose of the resolution was to have the Commission stand up against what the OIC claimed was a campaign to defame Islam.
Some members of the Commission proposed that the resolution be changed
to embrace all religions. The Commission accepted the proposal, and
changed the title of the resolution to "Defamation of Religions". The
resolution urged "all States, within their national legal framework, in
conformity with international human rights instruments to take all
appropriate measures to combat hatred, discrimination, intolerance and
acts of violence, intimidation and coercion motivated by religious
intolerance, including attacks on religious places, and to encourage
understanding, tolerance and respect in matters relating to freedom of
religion or belief". The Commission adopted the resolution without a
vote.
2000 to 2005
In 2000, the CHR adopted a similar resolution without a vote.
In 2001, a vote on a resolution entitled "Combating defamation of
religions as a means to promote human rights, social harmony and
religious and cultural diversity" received 28 votes in favour, 15
against, and 9 abstentions.
In 2002, a vote on a resolution entitled "Combating defamation of
religion" received 30 votes in favour, 15 against, and 8 abstentions. In 2003, 2004, and 2005, by similar votes, the CHR approved resolutions entitled "Combating defamation of religions".
In 2005, Yemen introduced a resolution entitled "Combating Defamation of Religions" in the General Assembly (60th Session). 101 states voted in favour of the resolution, 53 voted against, and 20 abstained.
2006
In March
2006, the CHR became the UNHRC. The UNHRC approved a resolution entitled
"Combating Defamation of Religions", and submitted it to the General
Assembly.
In the General Assembly, 111 member states voted in favour of the
resolution, 54 voted against, and 18 abstained. Russia and China,
permanent members of the UN Security Councils, voted for the Resolution.
2007
On 30 March 2007, the UNHRC adopted a resolution entitled "Combating Defamation of Religions". The resolution called upon the High Commissioner for Human Rights to report on the activities of her office with regard to combating defamation of religions.
On 30 March 2007, the UNHRC adopted a resolution entitled
"Elimination of all forms of intolerance and of discrimination based on
religion or belief". The resolution called upon the Special Rapporteur
on freedom of religion or belief to report on this issue for the Human
Rights Council at its sixth session.
In August 2007, the Special Rapporteur, Doudou Diène, reported to the General Assembly "on contemporary forms of racism, racial discrimination, xenophobia and related intolerance on the manifestations of defamation of religions and in particular on the serious implications of Islamophobia
on the enjoyment of all rights". Among other recommendations, the
Special Rapporteur recommended that the Member States promote dialogue
between cultures, civilizations, and religions taking into
consideration:
(a) The need to provide equal
treatment to the combat of all forms of defamation of religions, thus
avoiding hierarchization of forms of discrimination, even though their
intensity may vary according to history, geography and culture;
(b) The historical and cultural depth of all forms of defamation
of religions, and therefore the need to complement legal strategies with
an intellectual and ethical strategy relating to the processes,
mechanisms and representations which constitute those manifestations
over time;
...
(e) The need to pay particular attention and vigilance to maintain a
careful balance between secularism and the respect of freedom of
religion. A growing anti-religious culture and rhetoric is a central
source of defamation of all religions and discrimination against their
believers and practitioners. In this context governments should pay a
particular attention to guaranteeing and protecting the places of
worship and culture of all religions.
On 4 September 2007, the High Commissioner for Human Rights reported
to the UNHRC that "Enhanced cooperation and stronger political will by
Member States are essential for combating defamation of religions".
On 18 December 2007, the General Assembly voted on another resolution entitled "Combating Defamation of Religions". 108 states voted in favour of the resolution; 51 voted against it; and 25 abstained.
The resolution required the Secretary General to report to the
sixty-third session of the General Assembly on the implementation of the
resolution, and to have regard for "the possible correlation between
defamation of religions and the upsurge in incitement, intolerance and
hatred in many parts of the world".
2008
On 27 March 2008, the UNHRC passed another resolution about the defamation of religion. The resolution :
10. Emphasizes that respect of
religions and their protection from contempt is an essential element
conducive for the exercise by all of the right to freedom of thought,
conscience and religion;
11. Urges all States to ensure that all public officials,
including members of law enforcement bodies, the military, civil
servants and educators, in the course of their official duties, respect
all religions and beliefs and do not discriminate against persons on the
grounds of their religion or belief, and that all necessary and
appropriate education or training is provided;
12. Emphasizes that, as stipulated in international human rights
law, everyone has the right to freedom of expression, and that the
exercise of this right carries with it special duties and
responsibilities, and may therefore be subject to certain restrictions,
but only those provided by law and necessary for the respect of the
rights or reputations of others, or for the protection of national
security or of public order, or of public health or morals;
13. Reaffirms that general comment No. 15 of the Committee on the Elimination of Racial Discrimination,
in which the Committee stipulates that the prohibition of the
dissemination of all ideas based upon racial superiority or hatred is
compatible with the freedom of opinion and expression, is equally
applicable to the question of incitement to religious hatred;
14. Deplores the use of printed, audio-visual and electronic
media, including the Internet, and of any other means to incite acts of
violence, xenophobia or related intolerance and discrimination towards
Islam or any religion;
15. Invites the Special Rapporteur on contemporary forms of
racism, racial discrimination, xenophobia and related intolerance to
continue to report on all manifestations of defamation of religions, and
in particular on the serious implications of Islamophobia, on the
enjoyment of all rights to the Council at its ninth session;
16. Requests the High Commissioner for Human Rights to report on the
implementation of the present resolution and to submit a study compiling
relevant existing legislations and jurisprudence concerning defamation
of and contempt for religions to the Council at its ninth session.
21 members were in favour of the resolution; 10 were opposed; 14 abstained.
The High Commissioner presented her report about defamation of, and contempt for, religions on 5 September 2008.
She proposed the holding of a consultation with experts from 2 to 3
October 2008 in Geneva about the permissible limitations to freedom of
expression in accordance with international human rights law. In another
report, dated 12 September 2008, the High Commissioner noted that
different countries have different notions of what "defamation of
religion" means.
Githu Muigai, Special Rapporteur on contemporary forms of racism,
racial discrimination, xenophobia and related intolerance, addressed
the UNHRC on 19 September 2008. He delivered the report
prepared by Doudou Diène. The report called on Member States to shift
the present discussion in international fora from the idea of
"defamation of religions" to the legal concept: "incitement to national,
racial or religious hatred," which is grounded on international legal
instruments.
On 24 November 2008, during the Sixty-third Session, the General
Assembly's Third Committee (Social, Humanitarian & Cultural)
approved a resolution entitled "Combating defamation of religions".
The resolution requests "the Secretary-General to submit a report on
the implementation of the present resolution, including on the possible
correlation between defamation of religions and the upsurge in
incitement, intolerance and hatred in many parts of the world, to the
General Assembly at its sixty-fourth session". 85 states voted in favour
of the resolution; 50 states voted against the resolution; 42 states
abstained.
2009
In February
2009, Zamir Akram, permanent representative of Pakistan to the United
Nations Office at Geneva, in a meeting of the Committee on the
Elimination of Racial Discrimination, commented on the "defamation of
religion". He said "there was an impression that Pakistan was trying to
put in place an international anti-defamation provision in the context
of the Durban Review Conference". Akram said the impression "was totally incorrect". Akram's delegation said:
... defamation of religions could
and had led to violence... . The end result was the creation of a kind
of Islamophobia in which Muslims were typecast as terrorists. That did
not mean that they opposed freedom of expression; it merely meant that
there was a level at which such expression led to incitement. An example
was the propaganda campaign that had been led by the Nazis in the
Second World War against the Jews which had led to The Holocaust."
In advance of 26 March 2009, more than 200 civil society
organizations from 46 countries, including Muslim, Christian, Jewish,
secular, Humanist and atheist groups, urged the UNHRC by a joint
petition to reject any resolution against the defamation of religion.
On 26 March 2009, the UNHRC passed a resolution, proposed by
Pakistan, which condemned the "defamation of religion" as a human rights
violation by a vote of 23–11, with 13 abstentions. The resolution:
17. Expresses its appreciation to
the High Commissioner for holding a seminar on freedom of expression and
advocacy of religious hatred that constitutes incitement to
discrimination, hostility or violence, in October 2008, and requests her
to continue to build on this initiative, with a view to contributing
concretely to the prevention and elimination of all such forms of
incitement and the consequences of negative stereotyping of religions or
beliefs, and their adherents, on the human rights of those individuals
and their communities;
18. Requests the Special Rapporteur on contemporary forms of
racism, racial discrimination, xenophobia and related intolerance to
report on all manifestations of defamation of religions, and in
particular on the serious implications of Islamophobia, on the enjoyment
of all rights by their followers, to the Council at its twelfth
session;
19. Requests the High Commissioner for Human Rights to report to the
Council at its twelfth session on the implementation of the present
resolution, including on the possible correlation between defamation of
religions and the upsurge in incitement, intolerance and hatred in many
parts of the world.
Supporters of the resolution argued that the resolution is necessary
to prevent the defamation of Islam while opponents argued that such a
resolution was an attempt to bring to the international body the
anti-defamation laws prevalent in some Muslim countries.
On 1 July 2009, Githu Muigai, Special Rapporteur on contemporary
forms of racism, racial discrimination, xenophobia and related
intolerance, submitted to the UNHRC the report requested by it on 26
March 2009. The report "reiterates the recommendation of his predecessor
to encourage a shift away from the sociological concept of the
defamation of religions towards the legal norm of non-incitement to
national, racial or religious hatred".
On 31 July 2009, the Secretary General submitted to the General
Assembly the report that it requested in November 2008. The Secretary
General noted, "The Special Rapporteurs called for anchoring the debate
in the existing international legal framework provided by the International Covenant on Civil and Political Rights
– more specifically its articles 19 and 20." The Secretary General
concluded, "In order to tackle the root causes of intolerance, a much
broader set of policy measures needs to be addressed covering the areas
of intercultural dialogue as well as education for tolerance and
diversity."
On 30 September 2009, at the UNHRC's twelfth session, the United States and Egypt introduced a resolution which condemned inter alia "racial and religious stereotyping".
The European Union's representative, Jean-Baptiste Mattei (France),
said the European Union "rejected and would continue to reject the
concept of defamation of religions". He said, "Human rights laws did not
and should not protect belief systems." The OIC's representative on the
UNHRC, Zamir Akram (Pakistan), said, "Negative stereotyping or
defamation of religions was a modern expression of religious hatred and
xenophobia." Carlos Portales (Chile) observed, "The concept of the
defamation of religion took them in an area that could lead to the
actual prohibition of opinions." The UNHRC adopted the resolution without a vote.
In Geneva, from 19 to 30 October 2009, the Ad Hoc Committee of
the Human Rights Council on the Elaboration of Complementary Standards met to update the measures for combating racism, racial discrimination, xenophobia, and related intolerance that the Durban I conference had formulated.
The committee achieved little because of conflict over a variety of
issues including "defamation of religion". The United States said that
defamation of religion is "a fundamentally flawed concept". Sweden, for
the European Union, argued that international human rights law protects
individuals, not institutions or religions. France insisted that the UN
must not afford legal protection to systems of belief. Syria criticized
the "typical and expected Western silence" on "acts of religious
discrimination". Syria said "in real terms defamation means targeting
Muslims".
Zamir Akram (Pakistan) wrote to the Ad Hoc Committee on 29
October 2009 to explain why the OIC would not abandon the idea of
defamation of religion. Akram's letter states:
The OIC is concerned by the
instrumentalization of religions through distortion or ridicule aimed at
demeaning and provoking their followers to violence as well as at
promoting contempt towards religious communities in order to de-humanize
their constituent members with purpose of justifying advocacy of racial
and religious hatred and violence against these individuals.
The letter says defamation of religion has been "wrongly linked with
malafide intentions to its perceived clash with" the freedom of opinion
and expression. The letter declares:
All religions are sacred and merit
equal respect and protection. Double standards, including institutional
preferential treatment for one religion or group of people must be
avoided. The OIC demands similar sanctity for all religions, their
religious personalities, symbols and followers. Tolerance and
understanding cannot merely be addressed through open debate and
inter-cultural dialogue as defamation trends are spreading to the grass
root levels. These growing tendencies need to be checked by introducing a
single universal international human rights framework.
In New York, on 29 October 2009, the UN's Third Committee (Social, Humanitarian & Cultural) approved a draft resolution entitled "Combating defamation of religions" by a vote which had 81 for, 55 against, and 43 abstaining.
On 18 December 2009, the General Assembly approved a resolution
deploring the defamation of religions by a vote of 80 nations in favour
and 61 against with 42 abstentions.
2010
In March 2010, Pakistan again brought forward a resolution entitled "Combating defamation of religions" on behalf of the OIC.
The resolution received much criticism. French ambassador Jean-Baptiste Mattei, speaking on behalf of the European Union,
argued that the "concept of defamation should not fall under the remit
of human rights because it conflicted with the right to freedom of
expression". Eileen Donahoe,
the US ambassador, also rejected the resolution. She said, "We cannot
agree that prohibiting speech is the way to promote tolerance, because
we continue to see the 'defamation of religions' concept used to justify
censorship, criminalisation, and in some cases violent assaults and
deaths of political, racial, and religious minorities around the world."
The UNHRC passed the resolution on 25 March 2010 with 20 members
voting in favour; 17 members voting against; 8 abstaining; and 2 absent.
2011
In early 2011, with declining support for the defamation of religion approach and at the time of the Arab Spring,
which was in part due to a lack of freedom of speech, political
freedoms, poor living conditions, corruption, and rising food prices,
there was a real possibility that another resolution on the defamation
of religion would be defeated. The OIC shifted position and opted to
pursue an approach that would gain the support from both OIC and Western
countries. On 24 March 2011, the UN Human Rights Council
in a very significant move shifted from protecting beliefs to the
protection of believers with the unanimous adoption without a vote of Resolution 16/18 introduced by Pakistan.
Among its many specific points, Resolution 16/18
on Combating intolerance, negative stereotyping and stigmatization of,
and discrimination, incitement to violence, and violence against persons
based on religion or belief, highlights barriers to religiously
tolerant societies and provides recommendations on how these barriers
can be overcome. The resolution calls upon all member states to foster
religious freedom and pluralism, to ensure religious minorities are
properly represented, and to consider adopting measures to criminalize
incitement to imminent violence based on religion or belief. Other
recommendations include creating government programs to promote
inter-religious tolerance and dialogue, training government employees to
be sensitive toward religious sensitivities, and engaging in outreach
initiatives.
At a meeting on 15 July 2011, hosted by the Organization of
Islamic Cooperation at the OIC/IRCICA premises in the historic Yildiz
Palace in Istanbul and co-chaired by the OIC Secretary-General Prof.
Ekmeleddin Ihsanogl, U.S. Secretary of State Mrs. Hillary Rodham Clinton
and the EU High Representative for Foreign Affairs, together with
foreign ministers and officials from Australia, Belgium, Canada,
Denmark, Egypt, France, Germany, Italy, Japan, Jordan, Lebanon, Morocco,
Pakistan, Poland, Romania, Senegal, Sudan, United Kingdom, the Vatican
(Holy See), UN OHCHR, Arab League, African Union, gave a united impetus
to the implementation of UN Human Rights Council Resolution 16/18 with
the release of a Joint Statement. The text includes the following:
- "They called upon all relevant stakeholders throughout the world
to take seriously the call for action set forth in Resolution 16/18,
which contributes to strengthening the foundations of tolerance and
respect for religious diversity as well as enhancing the promotion and
protection of human rights and fundamental freedoms around the world.
- Participants, resolved to go beyond mere rhetoric, and to
reaffirm their commitment to freedom of religion or belief and freedom
of expression by urging States to take effective measures, as set forth
in Resolution 16/18, consistent with their obligations under
international human rights law, to address and combat intolerance,
discrimination, and violence based on religion or belief. The co-chairs
of the meeting committed to working together with other interested
countries and actors on follow up and implementation of Resolution 16/18
and to conduct further events and activities to discuss and assess
implementation of the resolution."
In July, 2011, the UN Human Rights Committee adopted a 52-paragraph statement, General Comment 34 on the International Covenant on Civil and Political Rights (ICCPR) 1976, concerning freedoms of opinion and expression. Paragraph 48 states:
- Prohibitions of displays of lack of respect for a religion or
other belief system, including blasphemy laws, are incompatible with the
Covenant, except in the specific circumstances envisaged in article 20,
paragraph 2, of the Covenant. Such prohibitions must also comply with
the strict requirements of article 19, paragraph 3, as well as such
articles as 2, 5, 17, 18 and 26. Thus, for instance, it would be
impermissible for any such laws to discriminate in favor of or against
one or certain religions or belief systems, or their adherents over
another, or religious believers over non-believers. Nor would it be
permissible for such prohibitions to be used to prevent or punish
criticism of religious leaders or commentary on religious doctrine and
tenets of faith.
Article 20, paragraph 2 of the Covenant states: Any advocacy of
national, racial or religious hatred that constitutes incitement to
discrimination, hostility or violence shall be prohibited by law.
The ICCPR
binds all signatory countries. Consequently, countries with blasphemy
laws in any form that have signed the ICCPR are in breach of their
obligations under the ICCPR.
On 19 December 2011, the UN General Assembly endorsed Human Rights Council Resolution 16/18 with the adoption of Resolution 66/167.
The resolution was sponsored by the OIC after consultations with the
United States and the European Union and co-sponsored by Australia, New
Zealand, Brazil, Uruguay, Thailand and the Dominican Republic. With longer preambular statements, Resolution 66/167 repeats the language and substantive paragraphs of Resolution 16/18.
2012
At the nineteenth session of the Human Rights Council, on 22 March 2012, the Human Rights Council reaffirmed Resolution 16/18 with the unanimous adoption of Resolution 19/8. The General Assembly followed on 20 December 2012 with the adoption of Resolution 67/178.
2013
At the
twenty-second session of the Human Rights Council on 22 March 2013, the
Human Rights Council again reaffirmed Resolution 16/18 and Resolution
19/8 with the unanimous adoption of
Resolution 22/31.