INTER‐AMERICAN COMMISSION ON HUMAN RIGHTS          OEA/Ser.L/V/II.  Doc. 69  30 December 2011  Original: Spanish         AANNNNUUAALL  RREEPPOORRTT  OOFF  TTHHEE     IINNTTEERR‐‐AAMMEERRIICCAANN  CCOOMMMMIISSSSIIOONN     OONN  HHUUMMAANN  RRIIGGHHTTSS   22001111     VOLUME II      ANNUAL REPORT OF THE OFFICE OF THE SPECIAL  RAPPORTEUR FOR FREEDOM OF EXPRESSION   2011      Dr. Catalina Botero  Special Rapporteur for Freedom Of Expression        GENERAL SECRETARIAT  ORGANIZATION OF AMERICAN STATES  WASHINGTON, D.C. OAS Cataloging-in-Publication Data Inter-American Commission on Human Rights. Office of the Special Rapporteur on Freedom of Expression. Informe anual de la Relatoría Especial para la Libertad de Expresión, 2011 : Informe anual de la Comisión Interamericana de Derechos Humanos, 201l, vol.2 / Catalina Botero Marino, Relatora Especial para la Libertad de Expresión. v. ; cm. (OEA documentos oficiales ; OEA/Ser.L) ISBN 978-0-8270-5786-9 1. Freedom of information--America. 2. Freedom of Speech--America. 3. Civil rigths—America. 4. Human rights--America. I. Botero Marino, Catalina. II. Title. III. Series. OAS official records ; OEA/Ser.L. OEA/Ser.L/V/II Doc.69, v.2     Schweizerische Eidgenossenschaft  Confédération suisse   Confederazione Svizzera  Confederaziun svizra    Document elaborated and printed thanks to the financial support European Commission (IEDDH Cris  No. 2009 / 167‐432), the  Swedish Foundation for Human Rights, and contributions of Governments from Costa Rica, France, Switzerland and United  States of America  Approved by the Inter-American Commission on Human Rights on December 30, 20111 1 The Annual Report of the IACHR was approed on December 30, 2011 in plenary session by the Commission, composed of Dinah Shelton, José de Jesús Orozco Henríquez, Rodrigo Escobar Gil, Luz Patricia Mejía Guerrero, Felipe González, Paulo Sérgio Pinheiro and Maria Silvia Guillen. iii ANNUAL REPORT OF THE OFFICE OF THE SPECIAL RAPPORTEUR FOR FREEDOM OF EXPRESSION 2011 Index Page TABLE OF ACRONYMS AND REFERENCES.............................................................................vii INTRODUCTION....................................................................................................................1 CHAPTER I: GENERAL INFORMATION.....................................................................................3 A. Creation of the Office of the Special Rapporteur for Freedom of Expression and Institutional Support........................................................................................3 B. Mandate of the Office of the Special Rapporteur.................................................6 C. Principal Activities of the Office of the Special Rapporteur....................................7 1. Individual Case System: Strategic Litigation on Freedom of Expression within the inter-American System ....................................................................8 2. Precautionary Measures ......................................................................12 3. Public Hearings ..................................................................................13 4. Seminars and Workshops with Strategic Actors in the Region..................14 5. Annual Report and development of expert knowledge.............................18 6. Special statements and declarations .....................................................18 D. Staff of the Office of the Special Rapporteur....................................................20 E. Funding........................................................................................................21 CHAPTER II: EVALUATION OF THE STATE OF FREEDOM OF EXPRESSION IN THE HEMISPHERE.23 A. Introduction and methodology.........................................................................23 B. Evaluation of the state of freedom of expression in the Member States..............................................................................................24 1. Argentina..........................................................................................24 2. Bolivia...............................................................................................32 3. Brazil ................................................................................................40 4. Canada..............................................................................................48 5. Chile.................................................................................................51 6. Colombia...........................................................................................55 7. Costa Rica.........................................................................................66 8. Cuba.................................................................................................68 9. Ecuador.............................................................................................73 10. El Salvador......................................................................................101 11. United States...................................................................................104 12. Guatemala.......................................................................................115 13. Guyana...........................................................................................121 14. Haiti................................................................................................126 15. Honduras.........................................................................................129 16. Jamaica ..........................................................................................142 17. Mexico............................................................................................145 iv Page 18. Nicaragua........................................................................................174 19. Panama...........................................................................................180 20. Paraguay.........................................................................................184 21. Peru................................................................................................186 22. Dominican Republic ..........................................................................194 23. Trinidad and Tobago.........................................................................195 24. Uruguay..........................................................................................196 25. Venezuela........................................................................................198 CHAPTER III: THE RIGHT TO ACCESS TO PUBLIC INFORMATION IN THE AMERICAS...............211 A. Introduction................................................................................................211 B. Guiding Principles of the Right of Access to Information...................................214 1. Principle of Maximum Disclosure........................................................214 a. First corollary of the principle of maximum disclosure: The right of access to information is the rule and secrecy the exception............................................................216 b. Second corollary of the principle of maximum disclosure: The State bears the burden of proof to justify limits on the right of access to information.........................................................222 c. Third corollary of the principle of maximum disclosure: Supremacy of the right of access to information in the event of conflicting statutes or lack of regulation...............................229 2. Principle of Good Faith......................................................................232 C. Content and Scope of the Right of Access to Information ................................236 1. Every Person Has the Right of Access to Information............................236 2. Subjects with Obligations under the Right of Access to Information........241 3. Object or Scope of the Right..............................................................248 4. Obligations Imposed on the State by the Right of Access to Information.255 a. Obligation to respond to requests in a timely, complete, and accessible manner.................................................................255 b. Obligation to provide an administrative remedy that satisfies the right of access to information.........................................................263 c. Obligation to provide an appropriate, effective judicial remedy for reviewing denials of requests for information............................276 d. Obligation of active transparency.............................................284 e. Obligation to produce or gather information..............................293 f. Obligation to create a culture of transparency...........................299 g. Obligation of adequate implementation.....................................301 v Page 5. Limitations to the Right of Access to Information.................................309 a. Legal establishment and regulation of exceptions ......................309 b. Regime of sanctions...............................................................336 D. Conclusions................................................................................................342 CHAPTER IV: REPARATIONS FOR THE VIOLATION OF ARTICLE 13 OF THE AMERICAN CONVENTION AND OTHER RIGHTS RELATED TO ILLEGITIMATE RESTRICTIONS ON THE RIGHT TO FREEDOM OF EXPRESSION.................................................................................347 A. Introduction................................................................................................347 B. The right to reparation in inter-American human rights law...............................348 C. Damages and reparations arising specifically from to Article 13 of the American Convention...................................................................................351 1. Case of “The Last Temptation of Christ“ (Olmedo Bustos et al.) v. Chile...........................................................351 2. Case of Ivcher Bronstein v. Peru.........................................................352 3. Case of Herrera Ulloa v. Costa Rica....................................................353 4. Case of Ricardo Canese v. Paraguay...................................................355 5. Case of Palamara Iribarne v. Chile.......................................................356 6. Case of Claude Reyes et al v. Chile.....................................................358 7. Case of Kimel v. Argentina................................................................359 8. Case of Tristán Donoso v. Panama.....................................................360 9. Case of Ríos et al. v. Venezuela.........................................................362 10. Case of Perozo et al. v. Venezuela......................................................363 11. Case of Usón Ramírez et al. v. Venezuela............................................364 12. Case of Manuel Cepeda Vargas v. Colombia........................................365 13. Case of Gomes Lund v. Brazil.............................................................366 D. Examination of the components for reparation of freedom of expression in inter- American case law......................................................................................367 1. Measures of restitution .....................................................................368 2. Measures of compensation................................................................374 3. Measures of satisfaction....................................................................378 4. Measures of rehabilitation..................................................................382 5. Guarantees of non-repetition..............................................................383 CHAPTER V: CONCLUSIONS AND RECOMMENDATIONS......................................................387 A. Violence against journalists and media outlets.................................................387 B. Criminalization of expression and promoting proportionality in the application of subsequent liability......................................................................................388 C. Statements of high-level State authorities.......................................................389 D. Prior censorship...........................................................................................389 E. Discriminatory distribution of government advertising......................................389 F. Progress on access to information.................................................................390 G. Allocation of radio frequencies......................................................................390 vi TABLE OF ACRONYMS AND REFERENCES ACHPR: African Commission on Human and Peoples’ Rights American Convention: American Convention on Human Rights American Declaration: American Declaration of the Rights and Duties of Man Declaration of Principles: Declaration of Principles on Freedom of Expression European Convention: European Convention on Human Rights and Fundamental Freedoms European Court: European Court of Human Rights IACHR: Inter-American Commission on Human Rights ICCPR: International Covenant on Civil and Political Rights ILO: International Labor Organization Inter-American Court: Inter-American Court of Human Rights OAS: Organization of American States OSCE: Organization for Security and Cooperation in Europe Office of the Special Rapporteur: Office of the Special Rapporteur for Freedom of Expression UN: United Nations UNESCO: United Nations Educational, Scientific and Cultural Organization vii ANNUAL REPORT OF THE OFFICE OF THE SPECIAL RAPPORTEUR FOR FREEDOM OF EXPRESSION 2011 INTRODUCTION 1. The Office of the Special Rapporteur for Freedom of Expression (hereinafter, “Office of the Special Rapporteur”) was created in October of 1997 by the Inter-American Commission on Human Rights (hereinafter, “IACHR”) during its 97th Period of Sessions. Since its establishment, the Office of the Special Rapporteur has had the support of not only the IACHR, but also Member States of the Organization of American States (OAS), non-Member States, civil society organizations, communications media, journalists, and, particularly, the victims of violations of the right to freedom of expression. Indeed, those who have turned to the inter-American system for the protection of human rights as a mechanism for the protection and guarantee of their right to freedom of expression have found that the Office of the Special Rapporteur offers decisive support for reestablishing the guarantees necessary for exercising their rights and for insuring that the damage from the violation of those rights is repaired. 2. Since its inception, the Office of the Special Rapporteur has worked for the promotion of the right to freedom of expression through technical assistance in individual cases before the inter-American system for the protection of human rights. With the same objective, and in the framework of the IACHR, the Office of the Special Rapporteur has prepared thematic and country reports, carried out official visits and promotional trips, and participated in dozens of conferences and seminars that have sensitized and trained hundreds of public officials, journalists, and defenders of the right to free expression. 3. The Annual Report of 2011 follows the basic structure of previous annual reports and fulfills the mandate established by the IACHR for the work of the Office of the Special Rapporteur. The report begins with a general introductory chapter that explains in detail the office’s mandate, the most important achievements of the Office of the Special Rapporteur in its thirteen years of operation, and the activities carried out in 2011. 4. Chapter II presents the now-customary evaluation of the situation of freedom of expression in the hemisphere. In 2011, the Office of the Special Rapporteur received information from multiple sources about situations that could affect the exercise of the right to freedom of expression as well as progress in the effort to guarantee this right. Following the methodology of previous reports, this information was evaluated in light of the Declaration of Principles on Freedom of Expression (hereinafter, “Declaration of Principles”), approved by the IACHR in 2000. The Declaration of Principles constitutes an authoritative interpretation of Article 13 of the American Convention on Human Rights (hereinafter, “American Convention”) and an important instrument to help States to resolve challenges and promote, guarantee, and respect the right to freedom of expression. 5. Based on analysis of the situations reported in the hemisphere, the Office of the Special Rapporteur highlights some challenges facing the States in the region. In particular, Chapter II of this report places emphasis on the murders, attacks, and threats against journalists. States have the obligation to protect journalists who confront particular risks as a result of the exercise of their profession. States have an obligation to investigate, try, and punish those responsible for these acts, not only to provide reparation to the victims and their families, but also to prevent future occurrences of violence and intimidation. Additionally, the Office of the Special Rapporteur considers it important to call attention to other aspects of freedom of expression in the Americas, such as the misuse of the criminal law to try those who make statements that offend public officials, and best practices such as the approval and application of access to information laws. 2 6. The intense efforts of the Office of the Special Rapporteur have allowed it to become an expert office charged with promoting and monitoring respect for freedom of expression in the hemisphere. This standing has generated, in turn, a substantial increase in the expectations of the hemispheric community with regard to the work of the Office of the Special Rapporteur. In order to meet this demand, it is necessary to pay attention not only to the institutional and political support of the Office of the Special Rapporteur, but also its financial support, since without this support it cannot function and carry out the activities required by its mandate. The Office of the Special Rapporteur does not directly receive resources from the regular fund of the OAS. For this reason, its sustainability depends largely on the voluntary contributions made by some States and the contributions of foundations and international aid agencies for specific projects. It is important to once more urge OAS Member States to follow those countries that have responded to the call of the hemispheric summits to support the Office of the Special Rapporteur. The Plan of Action approved by the Heads of State and Government at the Third Summit of the Americas, held in Quebec in April of 2001, establishes that “[t]o strengthen democracy, create prosperity and realize human potential, our Governments will… [c]ontinue to support the work of the inter-American human rights system in the area of freedom of expression through the Special Rapporteur for Freedom of Expression of the IACHR[.]” 7. The Office of the Special Rapporteur is grateful for the financial contributions received during 2011 from Costa Rica; the United States of America; France; Sweden; Switzerland; and the European Commission. Once more, the Office of the Special Rapporteur invites other States to add to this necessary support. 8. The Special Rapporteur for Freedom of Expression, Catalina Botero Marino, is grateful for the confidence of the IACHR and highlights the work of her predecessors in the consolidation of the Office of the Special Rapporteur. In particular, the Special Rapporteur expresses her gratitude towards her staff for the committed and exemplary work that they have carried out. This annual report is the product of their effort and dedication. 9. This annual report intends to contribute to the establishment of an improved climate for the exercise of freedom of expression in the region, and in this way ensure the strengthening of democracy, wellbeing, and progress of the hemisphere’s inhabitants. Its objective is to collaborate with OAS Member States in raising awareness about the problems that we all wish to resolve and in formulating viable proposals and recommendations based on regional doctrine and jurisprudence. To achieve this aim, it is necessary that the work of the Office of the Special Rapporteur be understood as a useful tool for responding to the challenges we face and for generating a broad and fluid dialogue not only with the Member States, but also with civil society and journalists in the region. CHAPTER I GENERAL INFORMATION A. Creation of the Office of the Special Rapporteur for Freedom of Expression and Institutional Support 1. The Inter-American Commission on Human Rights, by the unanimous decision of its members, created the Office of the Special Rapporteur for Freedom of Expression during its 97th period of sessions, held in October 1997. This Special Rapporteurship was created by the Commission as a permanent, independent office that acts within the framework and with the support of the IACHR. Through the Office of the Special Rapporteur, the Commission sought to encourage the defense of the right to freedom of thought and expression in the hemisphere, given the fundamental role this right plays in consolidating and developing the democratic system and in protecting, guaranteeing, and promoting other human rights. During its 98th period of sessions, held in March 1998, the IACHR defined in general terms the characteristics and functions of the Office of the Special Rapporteur and decided to create a voluntary fund to provide it with economic assistance. 2. The Commission’s initiative to create a permanent Office of the Special Rapporteur for Freedom of Expression found full support among the OAS Member States. Indeed, during the Second Summit of the Americas, the hemisphere’s Heads of State and Government recognized the fundamental role of freedom of thought and expression, and noted their satisfaction over the creation of the Special Rapporteurship. In the Declaration of Santiago, adopted in April 1998, the Heads of State and Government stated the following: We agree that a free press plays a fundamental role [in protecting human rights] and we reaffirm the importance of guaranteeing freedom of expression, information, and opinion. We commend the recent appointment of a Special Rapporteur for Freedom of Expression, within the framework of the Organization of American States.1 3. The Heads of State and Government of the Americas likewise expressed their commitment to support the Office of the Special Rapporteur for Freedom of Expression. On this point, the Summit Plan of Action recommended the following: To strengthen the exercise of and respect for all human rights and the consolidation of democracy, including the fundamental right to freedom of expression, information and thought, through support for the activities of the Inter-American Commission on Human Rights in this field, in particular the recently created Special Rapporteur for Freedom of Expression.2 4. During the Third Summit of the Americas, held in Quebec City, Canada, the Heads of State and Government ratified the mandate of the Office of the Special Rapporteur, adding that their governments would: 1 Declaration of Santiago. Second Summit of the Americas. April 18-19, 1998. Santiago, Chile. “Official Documents of the Summit Process from Miami to Santiago.” Volume I. Office of Summit Follow-up. Organization of American States. 2 Plan of Action. Second Summit of the Americas. April 18-19, 1998. Santiago, Chile. “Official Documents of the Summit Process from Miami to Santiago.” Volume I. Office of Summit Follow-up. Organization of American States. 4 Continue to support the work of the inter-American human rights system in the area of freedom of expression through the Special Rapporteur for Freedom of Expression of the IACHR, as well as proceed with the dissemination of comparative jurisprudence, and seek to ensure that national legislation on freedom of expression is consistent with international legal obligations.3 5. The OAS General Assembly has on various occasions expressed its support for the work of the Office of the Special Rapporteur and entrusted it with follow-up or analysis of some of the rights that comprise freedom of expression. Thus, for example, in 2005 the OAS General Assembly approved Resolution 2149 (XXXV-O/05), in which it reaffirms the right to freedom of expression, recognizes the important contributions made in the Office of the Special Rapporteur’s 2004 Annual Report, and urges follow-up on the issues included in that report, such as the evaluation of the situation regarding freedom of expression in the region; indirect violations of freedom of expression; the impact of the concentration in media ownership; and the way hate speech is addressed in the American Convention.4 The Office of the Special Rapporteur has analyzed these issues in different annual reports, in the context of its evaluation of the state of freedom of expression in the region and in fulfillment of its task of creating expertise and promoting regional standards in this area. 6. In 2006, the OAS General Assembly reiterated its support for the Office of the Special Rapporteur in its Resolution 2237 (XXXVI-O/06). In this resolution, the General Assembly reaffirmed the right to freedom of expression, recognized the important contributions made in the Office of the Special Rapporteur’s 2005 Annual Report, and urged follow-up on the issues mentioned in the report. These included, among others, public demonstrations as an exercise of freedom of expression and freedom of assembly, as well as freedom of expression and the electoral process.5 As in the previous case, the Office of the Special Rapporteur has followed up on these issues in its annual evaluation of the situation regarding freedom of expression in the region. In the same resolution, the General Assembly called for convening a special meeting of the Committee on Juridical and Political Affairs to delve deeper into existing international jurisprudence regarding the subject matter of Article 13 of the American Convention, and to specifically address issues such as public demonstrations and freedom of expression, as well as the development and scope of Article 11 of the American Convention. That meeting was held on October 26-27, 2007. 7. In 2007, the OAS General Assembly approved Resolution 2287 (XXXVII-O/07), in which it invited the Member States to consider the Office of the Special Rapporteur’s recommendations on the matter of defamation laws. In that resolution, the General Assembly reiterated its request to convene a special meeting in the Committee on Juridical and Political Affairs to delve deeper into existing international jurisprudence regarding Article 13 of the American Convention. That meeting was held on February 28-29, 2008. 8. In 2008, the General Assembly approved Resolution 2434 (XXXVIII-O/08), which reaffirms the right to freedom of expression and requests once again that the IACHR conduct appropriate follow-up on compliance with standards in this area and deepen its study of the issues addressed in its annual reports. The resolution invites the Member States to consider the recommendations of the Office of the Special Rapporteur regarding defamation, namely by repealing 3 Plan of Action. Third Summit of the Americas. April 20-22, 2001. Quebec, Canada. Available at: http://www.summit-americas.org/iii_summit/iii_summit_poa_en.pdf 4 IACHR. Annual Report 2004. OEA/Ser.L/V/II.222. Doc. 5 rev. 23 February 2005. Chapters II, V and VII. Available at: http://www.cidh.oas.org/relatoria/showarticle.asp?artID=459&lID=1 5 IACHR. Annual Report 2005. OAS/Ser.L/V/II.124 Doc. 7. 27 February 2006. Chapter V and VI. Available at: http://www.cidh.oas.org/relatoria/showarticle.asp?artID=662&lID=1