Provisions on Child Abduction in Non-Hague Countries East Asia and the Pacific • Europe and Central Asia Latin America and the Caribbean • Middle East and North Africa South Asia • Sub-Saharan Africa May 2015 The Law Library of Congress, Global Legal Research Center (202) 707-6462 (phone) • (866) 550-0442 (fax) • [email protected] • http://www.law.gov This report is provided for reference purposes only. It does not constitute legal advice and does not represent the official opinion of the United States Government. The information provided reflects research undertaken as of the date of writing. It has not been updated. Contents I. East Asia and the Pacific Burma (Myanmar) ...........................................................................................................................1 China ................................................................................................................................................1 Indonesia ..........................................................................................................................................2 Laos ..................................................................................................................................................2 Malaysia ...........................................................................................................................................3 Mongolia ..........................................................................................................................................3 Papua New Guinea ...........................................................................................................................4 Philippines........................................................................................................................................4 Vietnam ............................................................................................................................................4 II. Europe and Central Asia Azerbaijan ........................................................................................................................................5 Kyrgyz Republic ..............................................................................................................................5 Liechtenstein ....................................................................................................................................6 Moldova ...........................................................................................................................................7 III. Latin America and the Caribbean Antigua and Barbuda .......................................................................................................................9 Aruba..............................................................................................................................................10 Bolivia ............................................................................................................................................11 Cuba ...............................................................................................................................................12 Guyana ...........................................................................................................................................12 Haiti................................................................................................................................................12 Jamaica ...........................................................................................................................................13 Saint Lucia .....................................................................................................................................13 Saint Vincent and the Grenadines ..................................................................................................13 IV. Middle East and North Africa Iran .................................................................................................................................................14 Saudi Arabia...................................................................................................................................17 Tunisia............................................................................................................................................17 V. South Asia India ...............................................................................................................................................17 Nepal .............................................................................................................................................17 Pakistan .........................................................................................................................................18 VI. Sub-Saharan Africa Cameroon .......................................................................................................................................18 Cape Verde .....................................................................................................................................19 Equatorial Guinea ..........................................................................................................................19 Kenya .............................................................................................................................................19 Mozambique ..................................................................................................................................19 Nigeria............................................................................................................................................19 Rwanda ..........................................................................................................................................20 São Tomé e Príncipe ......................................................................................................................20 Sudan..............................................................................................................................................20 Uganda ...........................................................................................................................................20 Provisions on Child Abduction in Non-Hague Countries Staff of the Global Legal Research Center SUMMARY This report covers laws on parental child abduction and the legal aid that may be available to parents of abducted children in thirty-eight countries that have not signed the Hague Convention on the Civil Aspects of International Child Abduction.1 The responses are organized by region of the world: East Asia and the Pacific, Europe and Central Asia, Latin America and the Caribbean, the Middle East and North Africa, South Asia, and Sub-Saharan Africa. While in many countries no specific legislation or programs dealing with international abduction of children could be located, existing laws and general legal aid programs may be relevant. I. East Asia and the Pacific Burma (Myanmar) Burma does not appear to provide legal representation for a parent in a foreign country whose child was abducted and lives in Burma. There is a legal aid system, but it is still being developed.2 Burma also does not appear to provide legal representation for a parent whose child was abducted from Burma to a foreign country. China Under Chinese law, there are no legal provisions specifically addressing international parental child abduction or legal assistance available for those involved. Free legal assistance is available to Chinese citizens in civil and criminal proceedings, with the scope of cases and eligibility for the aid provided in the nationally applicable Regulations of Legal Aid.3 Parental child abduction is not a criminal offense. In addition to the requirement of economic difficulty in hiring a representative, the Regulations limit family law cases for which a party may apply for legal aid to disputes over alimony for parents or spouses, and child support payments.4 Therefore, it is unlikely that individuals involved in international parental child abduction would be eligible for legal aid. 1 Convention of 25 October 1980 on the Civil Aspects of International Child Abduction, Oct. 25, 1980, http://www.hcch.net/index_en.php?act=conventions.text&cid=24. 2 Liz Riegel, Assessment Trip to Myanmar – Thanks, 2014 Donors!, GLOBALGIVING (Mar. 4, 2015), https://www.globalgiving.org/projects/legal-aid-in-post-conflict-countries/updates/. 3 Falü Yuanzhu Tiaoli [Regulations on Legal Aid] (promulgated by the State Council on July 21, 2003, effective Sept. 1, 2003), FAGUI HUIBIAN 102-107. 4 Id. art. 10. The Law Library of Congress 1 Provisions on Child Abduction in Non-Hague Countries Indonesia No specific provisions were located in Indonesian law regarding international parental child abduction or legal assistance for those involved. Under Law No. 16 of 2011 on Legal Aid5 and Government Regulation No. 42 of 2013,6 free legal assistance is available for civil proceedings, mediation, and nonlitigation matters. Eligibility is based on a provision in the Law that states that recipients of legal aid include “any person or group of poor people who cannot meet the basic right [sic] appropriately and independently.”7 In addition to a written application, people must provide a letter from the head of village or other official where they live certifying that they are poor. Government legal aid funding is administered by the Ministry of Law and Human Rights, with legal assistance delivered by more than three hundred accredited organizations throughout the country.8 Mediation services are available through the religious courts,9 which handle family law cases involving Muslims,10 as well as the civil courts.11 Laos Laos does not appear to provide legal representation for a parent in a foreign country whose child was abducted and lives in Laos.12 There is a legal aid system, but it is still being developed. Laos also does not appear to provide legal representation for a parent whose child was abducted from Laos to a foreign country. 5 Law No. 16 of 2011 on Legal Aid, http://www.setneg.go.id/components/com_perundangan/docviewer.php? id=2824&filename=UU%2016%20Tahun%202011.pdf (in Indonesian). 6 Government Regulation No. 42 of 2013 on Terms and Procedure for Legal Aid and Legal Assistance Fund Distribution, http://www.ekon.go.id/hukum/download/325/83/pp-42-2013.pdf (in Indonesian). See Press Release, Cabinet Secretariat of the Republic of Indonesia, President Signed the Government Regulation Regarding Free Legal Aid for the Poor (June 10, 203), http://old.setkab.go.id/en/news-8997-president-signed-the-government- regulation-regarding-the-free-legal-aid-for-the-poor.html. 7 Erna Ratnaningsih, Legal Aid System in Indonesia (undated), http://www.unct.org.bt/legalaid/doc/presentations/ Legal%20Aid%20System%20in%20Indonesia_ER.ppt (last visited Apr. 22, 2015); Law No. 16 of 2011, art. 5. 8 Constantinus Kristomo, New Laws to Provide State-Funded Legal Aid in Indonesia, INNOVATING JUSTICE FORUM, http://www.innovatingjustice.com/innovations/new-laws-to-provide-state-funded-legal-aid-in-indonesia (last visited Apr. 22, 2015). 9 See The Asia Foundation, Religious Courts: Improving Women’s Access to Justice in Indonesia (undated), https://asiafoundation.org/resources/pdfs/V4IDReligiousCourtsWEP4pgWEB.pdf (last visited Apr. 22, 2015). 10 Law No. 7 of 1989 on the Religious Judicature, art. 2, http://www.komisiyudisial.go.id/downlot.php?file= UU%20No%207%20Thn%201989%20PERADILAN%20AGAMA.pdf (in Indonesian). 11 See Supreme Court Regulation No. 1 of 2008 on Court Mediation Procedure, https://www.mahkamahagung. go.id/images/uploaded/prosedur_ttg_mediasi0001.pdf (in Indonesian). 12 Hiroshi Matsuo, ACCESS TO JUSTICE IN INDOCHINESE COUNTRIES IN INSTITUTIONAL COMPETITION BETWEEN COMMON LAW AND CIVIL LAW: THEORY AND POLICY, 249, 265 (Michèle Schmiegelow ed. 2014). The Law Library of Congress 2 Provisions on Child Abduction in Non-Hague Countries Malaysia No specific provisions were located in Malaysian law regarding international parental child abduction or legal assistance for those involved.13 The Legal Aid Act 1971 provides for legal aid to be granted to eligible applicants involved in civil proceedings,14 including in relation to “[r]ights and liabilities in respect of proceedings for divorce and custody.”15 It appears that eligibility for legal aid is restricted to persons with annual incomes of less than RM25,000 (about US$6,888), for whom such aid is free, and those with incomes between RM25,000 and RM30,000 (about US$8,265), who must contribute RM300 for their legal costs.16 Government- funded legal aid for civil cases is administered by the Legal Aid Department, which falls under the Prime Minister’s Department. The Legal Aid Department, through various branches, provides advice and representation to clients as well as mediation services.17 Mongolia No provisions directly concerning international parental child abduction under Mongolian law could be found in the English-language sources consulted. Mongolia does have a Family Law, which came into effect on August 1, 1999;18 some provisions of that law, taken together, could be seen as a basis for requesting assistance from courts or other governmental institutions in cases of child abduction. The Law states that a child’s welfare must be respected,19 that the court must protect the rights of the family,20 and that state administrative and social welfare institutions must also protect the rights of the family.21 The Law also states that divorced parents cannot limit each other in ways that result in there being difficulties in carrying out their duties to their children.22 It adds that parents have the right to demand the return of a kidnapped child.23 13 For analysis of Malaysian laws relevant to international parental child abduction see Suzanna Muhammad Said & Shamsuddin Suhor, International Parental Child Abduction in Malaysia: Foreign Custody Orders and Related Laws for Incoming Abductions, 20(S) PERTANIKA J. SOC. SCI. & HUM. 101 (2012), http://www.myjurnal.my/filebank/ published_article/16009/9.pdf. 14 Legal Aid Act 1971 (Act 26), pt 4, http://www.agc.gov.my/Akta/Vol.%201/Act%2026.pdf. 15 Legal Aid (Amendment to Third Schedule) Order 2011, http://www.federalgazette.agc.gov.my/outputp/pua_2011 1230_PERINTAH%20BANTUAN%20GUAMAN%20%28PINDAAN%20JADUAL%20KETIGA%29%202011.p df [scroll down to locate text in English]. 16 Eligibility of the Applicant, LEGAL AID DEPARTMENT, http://www.jbg.gov.my/index.php?option=com_ content&view=article&id=131&Itemid=284&lang=en (last visited Apr. 22, 2015). 17 Function, LEGAL AID DEPARTMENT, http://www.jbg.gov.my/index.php?option=com_content&view=article &id=65&Itemid=216&lang=en (last visited Apr. 22, 2015). 18 Family Law (June 11, 1999), available at http://www.ilo.org/dyn/natlex/docs/ELECTRONIC/57595/105357/F- 139350413/MNG57595%20Eng.pdf. 19 Id. art. 4.5. 20 Id. art. 5.1. 21 Id. art. 5.2. 22 Id. art. 26.2. The Law Library of Congress 3 Provisions on Child Abduction in Non-Hague Countries Mongolia has a government agency devoted to implementing rules on child welfare, the National Authority for Children, which is located in the capital city of Ulan Batar.24 Mongolia has a legal aid system that is run by the Mongolian Association of Advocates, a nongovernmental organization. The Association’s efforts cover both criminal and civil matters. Assistance is dependent on need in other than the most serious criminal cases; for those serious cases, no means test is applied.25 Papua New Guinea No specific provisions were located in the laws of Papua New Guinea regarding international parental child abduction or legal assistance for those involved. The Public Solicitor, established under the Constitution, is tasked with providing legal aid, advice, and assistance to eligible criminal defendants when directed by the Supreme Court or the National Court and at his or her own discretion in civil and criminal matters.26 This includes assistance in family law matters.27 Mediation services are provided by the courts in relation to a range of civil matters.28  Philippines No information was located as to whether the Philippines provides legal assistance to a parent whose child was abducted to or from the country. Also, no information was located indicating whether there is an agency handling legal representation for such parents. Vietnam Vietnam has a general legal aid system for particular groups of people, including poor people,29 but does not appear to provide legal representation for a parent in a foreign country whose child was abducted and lives in Vietnam. Vietnam also does not appear to provide legal representation 23 Id. art. 33.1 24 Regulatory and Implementing Agencies of the Government of Mongolia, INFOMONGOLIA.COM, http://www.info mongolia.com/ct/ci/1702/138/Regulatory%20and%20Implementing%20Agencies%20of%20Mongolian%20Govern ment (last visited Apr. 22, 2015). 25 Legal Aid in Mongolia, AMERICAN UNIVERSITY SCHOOL OF PUBLIC AFFAIRS, http://jpo.wrlc.org/bitstream/ handle/11204/3842/Mongolia.pdf?sequence=1 (last visited Apr. 22, 2015). 26 Constitution of the Independent State of Papua New Guinea § 177(2), http://www.paclii.org/pg/legis/consol_ act/cotisopng534/. 27 The Independent State of Papua New Guinea Public Solicitor’s Office (PSO), Public Solicitor’s Role in Providing Legal Assistance (2012), https://elo.legalaid.qld.gov.au/webdocs/dbtextdocs/internal/irregseries/cle/2012/ pngpso.pdf. 28 About Civil Cases, THE SUPREME AND NATIONAL COURTS OF PAPUA NEW GUINEA, http://www.pngjudiciary. gov.pg/home/index.php/national-court/civil-cases (last visited Apr. 22, 2015). 29 Law No. 69/2006/QH11 (June 29, 2006) Law On Legal Aid art. 10. The Law Library of Congress 4 Provisions on Child Abduction in Non-Hague Countries for a parent whose child was abducted from Vietnam to a foreign country. Embassies of Vietnam may provide general consular assistance in such cases.30 II. Europe and Central Asia Azerbaijan According to the Family Code of Azerbaijan, all family-related disputes must be adjudicated by the local district court where one of the spouses permanently resides.31 Azerbaijani law does not appear to include any specific provisions regarding international parental child abduction or legal assistance for those involved. The Criminal Code of the Republic of Azerbaijan does not recognize parental abduction as a crime. The only relevant provision of the Criminal Code is article 144.3, which punishes kidnapping of a minor by imprisonment for ten to fifteen years; however, it is not clear if abduction of a child by a parent in violation of custody rules is covered by this Law.32 Special procedures exist for minors to cross the national border. According to the Law on Exit from the Country, Entry into the Country, and Passports, a person under the age of eighteen may leave the country with the consent of his/her parents or legal representative, which is certified by a notary. In the absence of consent from one of the parents, the matter of exiting the country must be resolved by a court.33 For minors traveling abroad for permanent residence, exit from the country is allowed only with the consent of each parent or the child’s legal representative.34 Kyrgyz Republic The law of the Kyrgyz Republic does not appear to contain specific provisions regarding international parental child abduction or legal assistance for those involved. The Criminal Code of the Kyrgyz Republic35 does not recognize parental abduction as a crime. The only relevant provision of the Criminal Code is article 123.3, which punishes kidnapping of a minor by imprisonment for ten to twenty years.36 30 Decree No. 15/2008/ND-CP (Feb. 4, 2008) Defining the Functions, Tasks, Powers and Organizational Structure of the Ministry of Foreign Affairs art. 2, item 13 a. 31 FAMILY CODE OF THE REPUBLIC OF AZERBAIJAN, Law No. 781-IQ, art. 7, Dec. 28, 1999, http://www.taxes.gov. az/uploads/qanun/2011/mecelleler/aile_mecellesi_rus.pdf (in Russian). 32 CRIMINAL CODE OF THE REPUBLIC OF AZERBAIJAN, No.787-IQ, art.144.3, Dec. 30, 1999, available at http://www. legislationline.org/download/action/download/id/1658/file/4b3ff87c005675cfd74058077132.htm/preview. 33 Law on Exit from the Country, Entry into the Country, and Passports, No. 813, art. 2, June 14, 1994, http://www. migration.gov.az/images/pdf/aa536a87842307ede34f4b8fd59fa885.pdf. 34 Id. 35 CRIMINAL CODE OF THE KYRGYZ REPUBLIC, Law No. 69, Oct. 1, 1997, available at http://www.legislationline. org/ documents/section/criminal-codes. 36 Id. art. 123.3. The Law Library of Congress 5 Provisions on Child Abduction in Non-Hague Countries Special procedures must be followed when a minor is crossing the national border. According to the Law of the Kyrgyz Republic on External Migration, a person under the age of eighteen may exit the country upon the request of his/her legal representatives. Such requests must be certified by a notary. The exit of a minor may also be authorized by a court decision in the absence of an agreement between the child’s legal representatives.37 The exit of a minor aged fourteen to eighteen years to a foreign country for permanent residence is allowed only with the written consent of the child’s legal representative, certified by a notary.38 Liechtenstein While Liechtenstein is not a party to the Hague Convention on the Civil Aspects of International Child Abduction, it is a party to a comparable regional convention, the European Convention on Recognition and Enforcement of Decisions concerning Custody of Children and on Restoration of Custody of Children (European Convention),39 which entered into force for Liechtenstein on August 1, 1997.40 That Convention addresses the “improper removal” of a child, defined as “the removal of a child across an international frontier in breach of a decision relating to his custody which has been given in a Contracting State and which is enforceable in such a State.” Article 2 of the European Convention provides that each contracting state must appoint a central authority to carry out the functions provided for by the convention. The government of the Principality of Liechtenstein was designated as the central authority according to article 2.41 Liechtenstein is also a party to the Convention on the Rights of the Child (CRC),42 which contains provisions relevant to international child abduction. Article 11, paragraph 1 of the CRC postulates that State Parties must take measures to combat the illicit transfer and non-return of children abroad. In order to implement the CRC, Liechtenstein enacted the Act on Children and Adolescents (Kinder- und Jugendgesetz, KJG).43 The Office of Social Affairs (Amt für Soziale 37 Law on External Migration, No. 61, art. 40, July 17, 2000, available at http://www.legislationline.org/ documents/ action/popup/id/4978. 38 Id. 39 Council of Europe, European Convention on Recognition and Enforcement of Decisions Concerning Custody of Children and on Restoration of Custody of Children (European Convention), COUNCIL OF EUROPE TREATY SERIES [CETS] No. 105 (May 20, 1980). 40 Europäisches Übereinkommen über die Anerkennung und Vollstreckung von Entscheidungen über das Sorgerecht für Kinder und die Wiederherstellung des Sorgerechts [European Convention on Recognition and Enforcement of Decisions concerning Custody of Children and on Restoration of Custody of Children] [European Convention], LGBL 1997, No. 110. 41 Gesetz zur Durchführung des Europäischen Übereinkommens vom 20. Mai 1980 über die Anerkennung und Vollstreckung von Entscheidungen über das Sorgerecht für Kinder und die Wiederherstellung des Sorgerechts, [Act to Implement the European Convention on Recognition and Enforcement of Decisions concerning Custody of Children and on Restoration of Custody of Children] [Act to Implement the European Convention], art. 1, LGBL 1997, No. 24. Contact information for the government of the Principality of Liechtenstein is available at http://www.regierung.li/contact. 42 Convention on the Rights of the Child, opened for signature Nov. 20, 1989, entered into force Sept. 2, 1990, 1577 U.N.T.S. 3. 43 KINDER- UND JUGENDGESETZ [KJG] [ACT ON CHILDREN AND ADOLESCENTS], LGBL 2009, No. 29. The Law Library of Congress 6