Philippines:
Toward Ensuring Justice and Ending Political Killings
Memorandum submitted to Her Excellency Gloria Macapagal Arroyo, President
of the Republic of the Philippines, by Irene Khan, Secretary General of
Amnesty International
Posted by Bulatlat
Introduction
On 15 August 2006,
Amnesty International issued a report, Philippines: Political Killings,
Human Rights and the Peace Process (AI Index: ASA 35/006/2006),(1)
expressing grave concern at an intensifying pattern of political killings,
mainly of members of legal leftist political parties and other leftist
activists, which have taken place in the Philippines over recent years.
The report examined
the context of the killings and their impact on a long-standing peace
process with communist armed groups, and made a series of recommendations
to restore respect for human rights by all sides involved in the conflict,
particularly by taking steps to ensure that effective investigations lead
to those responsible for the killings being brought to justice.
On 21 August,
President Gloria Macapagal Arroyo announced the establishment of a special
Commission of Inquiry, headed by former Supreme Court Justice Jose Melo,
to investigate the killings and to make recommendations for remedial
action, including appropriate prosecutions and legislative proposals.
Pledging to "break
this cycle of violence once and for all," President Arroyo stated, "I have
directed [the Melo Commission] to leave no stone unturned in their pursuit
of justice...the victims and their families deserve justice to be served."
Subsequently
President Arroyo invited the Secretary General of Amnesty International,
Irene Khan, to meet in London (UK) on 14 September to discuss these issues
in more detail. The Secretary General submitted this memorandum to the
President as a basis for discussion for her consideration.
The memorandum
contains three parts:
- A summary of key
recommendations from Amnesty International’s report, Political
Killings, Human Rights and the Peace Process, issued on 15 August
2006.
- A summary of
recent reports indicating that political killings are continuing to take
place.
- Guidelines and key
principles that Amnesty International considers would help ensure that
the work of the Melo Commission of Inquiry gains wide public credibility
and acceptance as independent, impartial and effective.
Amnesty
International believes that by reflecting such guidelines and principles,
the Melo Commission’s work and eventual recommendations present an
important opportunity for the introduction of substantial, durable
measures that will strengthen respect for human rights and the rule of law
in the Philippines - and put an end to patterns of political killings.
Part 1. Amnesty
International’s report on political killings, human rights and the peace
process: key conclusions and recommendations
The number of
killings of political and community activists in the Philippines,
predominantly those associated with legal leftist or left-orientated
groups has increased in recent years. The killings mostly carried out by
unidentified men often wearing face masks who shoot the victims before
escaping on motorcycles, have rarely led to the arrest, prosecution and
punishment of those responsible.
The methodology of
the attacks, including prior death threats and patterns of surveillance by
persons reportedly linked to the security forces, the leftist profile of
the victims and a climate of impunity which, in practice, has shielded the
perpetrators from prosecution, have led Amnesty International to conclude
that the attacks are not an unconnected series of criminal murders but
constitute a politically-motivated pattern of killings. The organization
remains gravely concerned that members of the security forces may have
been directly involved in the killings, or else have tolerated, acquiesced
to, or been complicit in them.
Amnesty International
is concerned that existing serious flaws in the delivery of justice to the
victims of such killings represents a failure by the government to fulfil
its obligation under national and international law to protect the right
to life of every individual in its jurisdiction. The organisation is also
concerned that the killings have played a major role in the break-down of
a protracted peace process and an accompanying human rights agreement,
between the Government and the National Democratic Front (NDF),
representing the Communist Party of the Philippines (CPP) and its armed
wing, the New People’s Army (NPA).
Amnesty
International’s 14-Point Program for the Prevention of Extrajudicial
Executions, based on the UN Principles on the Effective Prevention and
Investigation of Extra-legal, Arbitrary and Summary Executions, provides a
framework within which the pattern of political killings can be stopped.
The organization urges the Government of the Philippines to implement the
Program in full.
Given reports of
continuing political killings, Amnesty International has made a number of
recommendations, addressed to the government, international organisations,
civil society organisations and the armed groups. A summary of key
recommendations include:
A. Reassert
Respect for Human Rights
Official condemnation: Consistently
and at every level of government condemn all political killings.
Chain of command control:
Prohibit orders from superior officers or public authorities authorizing,
inciting or tacitly encouraging other persons to carry out unlawful
killings, even through silence or failing to take action to investigate,
and ensure that those in command exercise appropriate and effective
control over those within their command.
Action against "death squads" and
vigilantes: Prohibit and
disband any "death squads", private armies, vigilantes, criminal gangs and
paramilitary forces operating outside the chain of command but with
official support or acquiescence.
B. Guarantee the
Administration of Justice
Investigation: Ensure that all
complaints and reports of political killings are investigated promptly,
impartially, independently, thoroughly and effectively. An independent and
impartial body should exercise oversight to ensure investigations are
conducted by the police and other investigative agencies in accordance
with international standards.(2)
Prosecution:
Ensure that those responsible for
political killings are brought to justice in accordance with international
standards of fairness.
Protection against death threats and other
intimidation: Take action to
fully implement the Witness Protection, Security and Benefit Act (RA 6981)
in order to ensure safe, reliable and durable mechanisms guaranteeing the
participation in the legal process of witnesses to political killings.
C. The Peace
Process: ensure compliance with the Human Rights Agreement
All sides of the armed conflict should
recommit to and ensure compliance with the 1998 Comprehensive Agreement on
Respect for Human Rights and International Humanitarian Law (CARHRIHL).
Respect for human rights the ground should
be enhanced by taking steps to ensure the operation of the Joint
Monitoring Committee of the CARHRIHL.
D. Action by other
human rights institutions
National: The Deputy Ombudsman for
the Military and Other Law Enforcement should conduct prompt, impartial
and effective investigations of all reported political killings which
should, as appropriate, lead promptly to recommendations to the Department
of Justice to file criminal charges against those found responsible.
International:
The Government of the Philippines should
access the expertise of relevant UN special mechanisms by inviting the
Special Rapporteur on Extrajudicial Executions, the Special Representative
on Human Rights Defenders, and representatives of the Working Group on
Arbitrary Detention to visit the Philippines.
Part 2. Reports of
further political killings
Between January and
June 2006, Amnesty International collated reports of 51 political
killings, compared to 66 recorded in the whole of 2005. Between July and
the beginning of September, Amnesty International received reports of at
least 15 further killings.
Among attacks
reported was that on Dr Constancio Claver and his wife, Alyce, on 31 July
2006. Constancio Claver is respected medical practitioner and provincial
convenor of the legal political party Bayan Muna (People First).
Alice was a Bayan Muna member and active of behalf of indigenous
peoples communities with the Cordillera People’s Alliance.
Early on 31 July, Dr
Claver, Alyce Claver and their young daughter were on their way to drop
off their older daughters at school in Tabuk, Kalinga. Two vans carrying
unidentified assailants reportedly appeared on the sides of the highway
and shot at their vehicle. Dr Claver received multiple gunshot wounds and
Alyce received four gunshot wounds to the neck, head and shoulders. Their
seven-year-old daughter was deeply traumatized by the event, and a female
bystander was injured by stray bullets. Dr Claver and Alyce were taken to
the Kalinga Provincial Hospital in Bulanao. Alyce Claver later died, while
Constancio survived.
Attacks have
continued following the establishment of the Melo Commission on 21 August.
Victor Olayvar, a local leader of the leftist organization Bagong
Alyansang Makabayan (BAYAN-New Patriotic Alliance) in Bohol was attacked
while travelling by hired motorbike to Tagbilaran City, Bohol early on 7
September. Two men riding a motorcycle blocked the road and one reportedly
shot Victor Olayvar several times at close range. He died shortly
afterwards.
Prior to the attack,
Victor Olayvar had reportedly been receiving death threats, and claimed he
was under surveillance. At a local Peace Forum convened on 2 September,
BAYAN members and other allied organizations expressed concerns to the
local military unit over reports of an alleged military "hit list" which
allegedly featured, among six others, Victor Olayvar’s name.
Part 3:
Investigating political killings, combating impunity and ensuring the
delivery of justice
The Melo
Commission
Established by
Presidential Administrative Order No. 157, the duties and functions of the
Independent Commission to Address Media and Activist Killings include the
investigation of killings and the reporting to the President of "action
and policy recommendations, including appropriate prosecution and
legislative proposals if any, aimed at eradicating the root causes of
extrajudicial executions and breaking such cycles of violence one and for
all." The Melo Commission is empowered under the Administrative Code of
1987, inter alia, to summon witnesses, to take testimony or
evidence relevant to its investigations, and to deputize the Armed Forces
of the Philippines (AFP), the National Bureau of Investigation (NBI), the
Philippine National Police (PNP), the Department of Justice (DOJ) and any
other law enforcement agency to assist it in the performance of its
duties.
Chaired by retired
Supreme Court Justice, Jose Melo, the Commission is made up also of the
Director of the NBI, the Chief State Prosecutor (DOJ), two representatives
of civil society (a Regent of the University of the Philippines and a
Bishop of the Roman Catholic Church), and a legal counsel. The government
members of the Commission from the NBI and DOJ, are tasked in particular
with prioritizing the prosecution of those responsible for the killings.
As the Commission begins its work, and
noting concerns expressed by some sectors of civil society as to whether
the Commission will be sufficiently independent, Amnesty International
highlights the following guidelines and principles which it believes will
help ensure the credibility and effectiveness of its efforts and
recommendations, both during its tenure and in the long term.
A. Fulfilling its mandate
i. Types of
violations to be investigated
The Melo Commission
should exercise its mandate to fully investigate reports of political
killings whether committed by, or with the acquiescence or complicity of,
government forces, or by the CPP-NPA or other armed groups. It should
assess the information collected in light of relevant provisions of
international human rights law and international humanitarian law, as well
as relevant Philippine laws.
The Commission should
recommend further full and impartial investigations into all suspected
political killings that, by the end of its tenure, it has not had the time
to inquire into, and to make recommendations for future inquiry and
investigation as necessary.
Amnesty International
also recommends that the Commission include in its investigations a
critical analysis of all factors which have led to or facilitated these
violations of international human rights law and international
humanitarian law, such as institutional structures, policies and
practices, and other factors.
ii. Period of
operation
Although it is
important to indicate a time limit for Commissions of Inquiry to end their
operations and report on their findings, it is equally important to make
that time limit a realistic one. Early reports suggest that the Melo
Commission envisages that it may be able to complete its work by December
2006.
Amnesty International
is concerned that such a time limit may prove insufficient. It may also
make witnesses more hesitant to come forward as they may have doubts about
the process being able to reach its final conclusion. At the same time,
the organization recognises that an overly extended period of operation
risks losing the public’s attention and political momentum.
To some extent, the problem of length of
time can be addressed by frequent public reporting and interim conclusions
and recommendations. Considering the length and complexity of its
investigation, Amnesty International recommends that the Melo Commission
publishes regular and frequent interim reports outlining progress made and
obstacles encountered. This would help establish and maintain effective
communication with the Philippine authorities, civil society organizations
and the general public.
B. Powers
i. Broad
investigatory powers
Where the Melo
Commission considers the police or other investigative agency to have made
an inconclusive or otherwise unsatisfactory investigation, it should
undertake a prompt, thorough, effective and impartial investigation and
not be hampered or otherwise inhibited by following the conclusions of a
previous investigation. Investigations should not simply constitute an
examination of an existing police investigations file.
Amnesty International
believes the credibility of its investigations will be significantly
enhanced to the extent that the Commission can rely, where necessary, on
its own investigators. Many independent commissions undermine themselves
and lose credibility by asking the alleged violators of human rights -
such as the armed forces or the police - to investigate allegations of
violations of human rights themselves, rather than the independent
commission making an investigation itself. Investigators retained by the
Melo Commission, should, as necessary, have access to effective and
practical training – especially the sharing of skills and best practice
from colleagues in the Philippines and abroad. Frequently investigations
undertaken with good will fail because of a lack of training in effective
investigative procedures and skills. Investigations conducted by
Commission investigators should be informed by knowledge of international
human rights law so that they can identify and understand legal issues
regarding their investigation
The Melo Commission should be able to
count on the services of experts in the relevant fields including
psychology, pathology, forensic anthropology, and ballistics. In
particular, forensic expertise should be on hand at short notice so that
effective investigation and recording of post mortem investigations can be
done efficiently, increasing the likelihood of bringing perpetrators to
justice. The methodology to be employed in autopsies should conform to the
United Nations Principles relating to the effective prevention and
investigation of extralegal, arbitrary or summary executions.(3) Where the
investigation is dealing with unlawful killing, the Commission should have
the authority to prevent burial or other disposal of the body or bodies
until and adequate post-mortem examination has been carried out.
C. Operations and
procedures
i.
An open and public inquiry
As a matter of principle, all aspects of
the work of a commission of inquiry should be made public. So far as
possible, the media and public should be given access to the proceedings
and to the evidence on which the Melo Commission bases its findings.
However, the openness
of the investigation and of the information it obtains needs to be
balanced against the confidentiality of personal information. The media
and public may be excluded from all or part of the proceedings, the
identities of victims and witnesses may be withheld, and material may be
omitted from the Commission’s report at the request of individual victims
or witnesses, or if the Commission considers that such measures are
necessary to protect them.
The Melo Commission
may gather information by taking written or oral statements and by
conducting hearings. It may conduct both public and confidential hearings.
As a general rule, the hearings should be opened to the public. However,
the Commission may decide to hold a hearing in camera (i.e., to
make it confidential), or to prevent one or more individuals from being
present, if the security of alleged perpetrators, victims or witnesses is
deemed to be threatened. In this case, it may also decide to keep
confidential any information relating to the proceedings. The Commission
must, however, permit any victim who has an interest in the proceedings
concerned to be present.
ii.
A victim-centred approach
International standards on the treatment
of victims of crimes under international law and other serious crimes
focus on three key state responsibilities: to treat victims with humanity;
to provide effective protection mechanisms; to ensure effective support.
The Declaration of
Basic Principles of Justice for Victims of Crime and Abuse of Power states
that victims "should be treated with compassion and respect for their
dignity" and that:
"[T]the responsiveness of judicial and
administrative processes to the needs of victims shall be facilitated by
taking measures to minimize inconvenience to victims, protect their
privacy, when necessary, and ensure their safety, as well as that of their
families and witnesses on their behalf, from intimidation and
retaliation."(4)
Principle 10 of the
Basic Principles on the Right to a Remedy and Reparation for Victims of
Gross Violations of International Human Rights Law and Serious Violations
of International Humanitarian Law states:
"Victims should be treated with humanity
and respect for their dignity and human rights, and appropriate measures
should be taken to ensure their safety, physical and psychological
well-being and privacy, as well as those of their families. The State
should ensure that its domestic laws, to the extent possible, provide that
a victim who has suffered violence or trauma should benefit from special
consideration and care to avoid his or her re-traumatization in the course
of legal and administrative procedures designed to provide justice and
reparation."
Complainants,
witnesses, those conducting the investigation and other involved in any
way should be protected from violence, threats of violence and any other
form of intimidation. The Melo Commission should be granted all necessary
human and material resources to devise and implement witness protection
measures with the cooperation, if necessary and appropriate, of the DOJ’s
Witness Protection Program. Protection measures should be available
for all witnesses and the families of victims, staff and others associated
with the investigation. In determining which protection measures to take,
the Commission should take into account the views of the witnesses on
which measures they require and whether the protection measures are
proportionate to the seriousness of the risk. The Commissioners should be
responsible for overseeing the implementation of all protection measures
and a procedure should be established whereby a witness who is not
satisfied with protection measures may apply to the Commissioners to
address the issue.
Interim reports
should include an assessment of the witness protection mechanisms. If
witnesses whose cases were detailed in the interim report are subsequently
subject to threats, intimidation or violence, action must be taken
immediately against perpetrators and the security of the witness ensured.
Protection measures
should not be restricted to concealing the identities of witnesses who
request it. They may include seeking restraining orders against anyone who
poses a threat to the witness or to their family, organizing police
protection, safeguarding the whereabouts of the witness and their family
from disclosure and providing them with medical and psychological
treatment and support. In some cases, such protection measures will need
to be long-term and can require relocation and new identities for the
witness and their families.
The Melo Commission
should have the power to require the relevant authorities to suspend from
duty officials and others allegedly involved in cases of extrajudicial
executions under investigation, or to transfer them to other duties where
they would have no power over victims or witnesses, without prejudice
pending completion of the investigations, if there is reason to believe
that they may interfere with witnesses or otherwise interfere with the
investigation.
iii.
A fair procedure
Amnesty International believes that all
witnesses, alleged perpetrators and other individuals involved should be
guaranteed the following rights, among others, at all stages of the
procedure before the Commission:
- The right not to
be discriminated against;
- The right to a
fair and public hearing by a competent, independent and impartial body;
- The right not to
be compelled to testify against themselves or to confess guilt;
- The right not to
be subjected to any form of coercion, duress or threat, to torture or to
any other cruel, inhuman or degrading treatment or punishment;
- The right to have
the free assistance of an interpreter if they cannot understand or speak
the language used;
- The right to be
informed promptly and in detail of any allegations made against them;
- The right to
defend themselves and the right to have legal assistance, where
appropriate;
- The right to be
presumed innocent until proved guilty according to law;
- If adversely
affected by the Commission’s decision, the right to seek judicial
review;
- In the case of
juveniles below 18 years of age, the procedure should take account of
their age and the desirability of promoting their rehabilitation.
iv.
Collection of evidence and statement-taking
In collecting information, the Melo
Commission should seek the cooperation of the widest possible range of
sectors of society, paying special attention to information and
testimonies provided by the families of victims, national and
international human rights organizations and previous research projects.
In the Philippines a
wide range of groups, including human rights, legal, political and Church
and community-based organizations, have conducted fact-finding missions
and compiled documentation into patterns of political killings over recent
years. Such groups should be actively encouraged to submit their reports
and to participate in the work of the Commission.
In addition, Amnesty
International urges the Government, on the advice of the Commission, to
seriously consider an expansion of the Commission’s membership to include
other independent and impartial persons from human rights or other groups
with experience of documenting reports of political killings.
The Commission should
pursue all available sources of information, including: statements from
surviving victims, witnesses and alleged perpetrators; material evidence
from sources such as government records, medical records or reports, and
police investigation files; court files; media reports; and information
from other NGOs, UN human rights monitoring bodies and mechanisms,
families of victims, and lawyers. The experience of human rights
organizations over the years has resulted in material relevant to the
cases of which the Commission should avail.
As a first step in
gathering evidence, the Commission should invite people to testify or
submit written statements. All interested parties should have an
opportunity to submit evidence. Evidence can be submitted to the inquiry
in writing, at least initially. The Commission should consider written
submissions from, or arrange special interviews with, witnesses who are
unable to attend because they are abroad, because they are afraid of
retaliations, or for other valid reasons. It should be flexible about the
manner of questioning witnesses and adapt its method to the circumstances
of the case and the individual interviewees, so as to gather an optimal
amount of evidence.
Commissions of
inquiry are not bound by such strict rules of evidence as a court, and can
consider reliable evidence of any kind, including, for example, hearsay
(secondary) evidence. All information received, especially if provided by
any individuals or groups which might attempt to use the Commission as an
instrument for their own purposes, should be evaluated with caution. The
Commission will need to assess all information and evidence it receives to
determine its relevance, veracity, reliability and probative value. The
reliability of hearsay evidence, in particular, must be considered
carefully and must normally be corroborated before it can be accepted it
as fact. On no account may the Commission admit statements obtained by
torture or other cruel, inhuman or degrading treatment or punishment,
unless as evidence that such torture or ill-treatment has been inflicted.
Legal counsel should assist the Commission by bringing relevant evidence
to its attention and ensuring that evidence produced by the inquiry is
admissible in later criminal proceedings.
v. Public
information and education campaign
A comprehensive
outreach policy is essential to the Commission’s impact.
- The Commission
should establish contact with representatives of non-governmental
organizations, other relevant non-state institutions and the media, to
publicize its work and obtain relevant information. It should also seek
to access information and advice from appropriate international human
rights bodies, including relevant UN Special Procedures such as the
Special Rapporteur on Extrajudicial Executions.
- The matters that
the Commission will look into should be notified to the public by all
appropriate media. This notice should include an invitation to submit
information and guidance for doing so.
Special attention
should be paid to notifying victims of the violations investigated, or
those who otherwise may have an interest. Live broadcasting of the
hearings in the media should be considered, subject to evaluations
regarding the protection of victims, witnesses and alleged perpetrators
(outlined above).
D. Reporting,
reparation and prosecution
i. Reporting,
recommendations and dissemination
The final report is the most visible outcome of the work of a commission
of inquiry. The report must provide details of all aspects of the Melo
Commission’s work, including investigations, hearings, findings and
recommendations for prosecution. The final report should set out:
- the Commission’s
mandate and terms of reference;
- its procedures and
methods for evaluating evidence, as well as the law upon which it
relied;
- the background to
the investigation, including relevant social, political and economic
conditions and information on whether the Commission received the
necessary cooperation by the government and other public institutions;
- its findings of
fact and a list of documents and other evidence upon which such findings
are based;
- its conclusions
based upon applicable law and findings of fact, including a critical
analysis of institutional structures, policies and practices, and other
factors which allowed the extrajudicial executions and other political
killings to take place;
- a list of victims
of extrajudicial executions and other political killings; and
- its
recommendations.
Amnesty International
recommends that the Melo Commission’s final report be made public and
widely circulated without undue delay.
As provided for in
its mandate, the Commission should make recommendations to the President
with regard to: reparations to victims and their families; the enactment
of specific legal, institutional and other reforms that would prevent
repetition of past violations; any necessary government actions to be
taken in furtherance of its findings. The Commission’s recommendations may
include for example: reforming laws, administrative procedures and
practices; strengthening the justice system; promoting human rights
education; organizing training for the police and security forces,
continuing investigations or inquiries into particular matters and
prosecutions in particular cases.
Recommendations
should also include the establishment or enablement of a future monitoring
body, be it international, national or combined, to ensure that all future
political or other unlawful killings are promptly and thoroughly
investigated, that perpetrators are brought to justice and that the
families of victims are ensured full reparation.
Amnesty International urges that that a
timeline be established for periodic review of the Commission’s
recommendations, and of the progress of their implementation by relevant
government agencies.
E. Preserving
evidence for future prosecutions
The work of the Melo
Commission should assist and should not prejudice current or future
criminal proceedings. If the Commission obtains information indicating
that identified individuals may have been responsible for committing,
ordering, encouraging or permitting unlawful killings, abductions and
enforced disappearances, that information should be passed to the relevant
judicial or law enforcement bodies for investigation without delay, with a
view to bringing those individuals to justice. Principle 8(e) of the
updated Set of Principles to Combat Impunity states:
"Commissions of inquiry shall endeavour to
safeguard evidence for later use in the administration of justice".
In carrying out their
mandate, the Commission should bear in mind the rules and conditions for
the admissibility of evidence in the criminal process and should ensure
that they produce admissible evidence for later criminal proceedings.
The government should
ensure that persons identified by the investigation as having participated
in the unlawful killings, abductions and enforced disappearances
investigated are brought to justice. The Commission should recommend
modalities of bringing to justice alleged perpetrators from both sides.
F. Archives
The UN Commission on
Human Rights has declared that
"… states should preserve archives and
other evidence concerning gross violations of human rights and serious
violations of international humanitarian law to facilitate knowledge of
such violations, to investigate allegations and to provide victims with
access to an effective remedy in accordance with international law".(5)
In particular,
commissions of inquiry should establish at the outset the conditions that
will govern access to their documents, including conditions aimed at
preventing disclosure of confidential information while facilitating
public access to their archives.(6)
(1) See main report,
and its summary, at:
http://news.amnesty.org/index/ENGASA350082006
(2) Including the
Code of Conduct for Law Enforcement Officials; United Nations Standard
Minimum Rules for Non-custodial Measures (The Tokyo Rules); Basic
Principles on the Independence of the Judiciary; Basic Principles on the
Role of Lawyers; and Guidelines on the Role of Prosecutors.
(3) United Nations
Principles relating to the Effective Prevention and Investigation of
Extralegal, Arbitrary or Summary Executions, endorsed by the General
Assembly in December 1989 and approved by the Economic and Social Council
in 24 May 1990.
(4) Declaration of
Basic Principles of Justice for Victims of Crime and Abuse of Power,
adopted by the UN General Assembly in Resolution 40/34 of 29 November
1985, Principle 4 and Principle 6(d).
(5) Commission on
Human Rights, Resolution 2005/66, Right to the truth, 20 April 2005.
(6) Updated Set of
principles to combat impunity, Principle 8(f).
********
14 September 2006
AI Index: ASA 35/010/2006 (Public)
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