State, sovereignty, justice and rights · Law · File 01
Law on the Protection of Public Freedoms and Human Rights
A draft national legislative framework law translating constitutional guarantees of rights and freedoms into binding operational rules for public authorities, with mechanisms for prevention, review, complaints, redress and legislative harmonisation.
Document contents
Table of contents
- Executive summary
- Retrieval of previous work and changes made
- First — Updated legal and institutional baseline
- Second — Draft Law on the Protection of Public Freedoms and Human Rights
- Draft Law on the Protection of Public Freedoms and Human Rights No. ( ) of ( )
- Chapter One — General provisions and governing principles
- Chapter Two — Fundamental rights and freedoms and their safeguards
- Chapter Three — Procedural safeguards for economic, social and cultural rights
- Chapter Four — Rules on restricting rights and freedoms
- Chapter Five — Prevention, compliance and legislative quality
- Chapter Six — Complaints, redress and institutional cooperation
- Chapter Seven — Oversight, measurement and legislative review
- Chapter Eight — Implementation, funding and final provisions
- Statement of reasons
- Third — Explanatory memorandum and legislative policy
- Fourth — Post-enactment implementation plan
- Fifth — Financial impact and costing model
- Sixth — Priority legislative harmonisation matrix
- Seventh — Risk register and mitigation plans
- Eighth — Consistency with the wider political programme
- Ninth — Technical annexes
- Tenth — References and sources
- Eleventh — Final document review register
Executive summary
This file proposes a federal framework law translating dispersed, general constitutional guarantees of rights and freedoms into binding operational rules for public authorities. The problem is not the absence of rights from the Constitution, but inconsistent interpretation and restriction, weak written justification for restrictive decisions, fragmented complaint pathways, absence of systematic assessment of laws’ and policies’ effects on rights, and growing risks from digital surveillance and automated decisions.
The Law adopts a uniform rule for any restriction on a right or freedom: a clear legal basis, legitimate constitutional purpose, demonstrated necessity, proportionality, the least restrictive means, non-discrimination, preservation of the right’s essence, written reasons and review. It imposes preventive duties on public bodies, including human rights impact assessments for restrictive bills and policies, designation of compliance focal points from existing staff, and publication of measurable annual reports.
The proposal creates no new commission, special human rights court or executive body to investigate allegations of torture or offences. The High Commission for Human Rights remains within its governing law; criminal investigation remains with the judiciary, Public Prosecution Service and legally authorised bodies. The Ministry of Justice’s Human Rights Department coordinates government plans, reporting and capacity-building without replacing complaint-handling or investigative bodies.
The draft comprises 80 Articles in eight Chapters covering equality; liberty and security; prohibition of torture; fair trial; expression and media; assembly and demonstration; associations; privacy, communications and data; digital rights and automated decisions; freedom of thought, religion and movement; procedural safeguards for economic and social rights; and rules on restrictions, impact assessment, complaints, redress, oversight, indicators, implementation and funding.
Financially, this version discards the earlier estimate of 30 million dollars over 2-3 years because it was not based on an inventory of quantities, systems or staffing and related to a broader institutional concept. The current version relies on existing structures and requires a three-year implementation plan and detailed costing within 180 days, distinguishing capital and operating expenditure, funding sources, the funding gap and outcome indicators.
Governing design decisions
- The Law is a cross-cutting rights protection framework. It does not replace specialised political programme files, such as anti-discrimination, journalist protection, prevention of arbitrary detention, judicial reform or cybersecurity.
- No second human rights body shall be created. The existing national institution is the High Commission for Human Rights established by Law No. 53 of 2008.
- No parallel executive criminal investigation pathway shall be established. Any allegation of an offence, especially torture, coercion or assault in detention, shall be referred to the judiciary and Public Prosecution Service according to jurisdiction.
- No new expression offences or broadly framed prison penalties. Existing criminal, civil and disciplinary liabilities continue under their governing laws; provisions affecting expression shall be reviewed through a separate harmonisation package.
- Restrictions on rights shall undergo a uniform test of legality, necessity, proportionality and the least restrictive means, with reasons and review.
- Digital rights extend the same rights: data protection, regulated surveillance, prevention of broad internet shutdowns without a legal basis and rigorous test, and human review of consequential automated decisions.
- Economic and social rights shall be protected against discrimination and arbitrary treatment. The Law recognises progressive realisation within available resources, without itself creating unfunded spending obligations.
- Federal application shall respect the constitutional division of powers and allow the Region and governorates to adopt wider protection within their powers.
Retrieval of previous work and changes made
| Theme | Previous formulation | Final decision in this version |
|---|---|---|
| Structure | 2025 draft: approximately 5 Chapters and 21 Articles | 2026 version: 8 Chapters and 80 Articles, with compliance and implementation mechanisms |
| Nature of protection | A list of general rights and safeguards | Applicable rules + uniform restriction test + written reasons + review |
| Institutions | A broader concept capable of generating new structures | Reliance on the Commission, judiciary, Public Prosecution Service and Ministry of Justice within their powers |
| Funding | Earlier approximate estimate: 30 million dollars/2-3 years | Discarding the fixed estimate and requiring a detailed costing plan within 180 days |
| Digital environment | Limited coverage | Personal data, surveillance, internet, automated decisions and artificial intelligence |
| Legislative quality | Not detailed | Human rights impact assessment and compatibility statement for government bills |
| Harmonisation | General references | Priority matrix for legislation being enacted or requiring amendment |
First — Updated legal and institutional baseline
1. Constitutional basis
The proposal rests on the rights and freedoms in the Constitution of the Republic of Iraq of 2005, particularly equality; life, security and liberty; privacy; trial safeguards; dignity and prohibition of torture; expression, press, assembly and demonstration; associations; confidentiality of communications; thought, belief and movement. It also rests on Article 46, which requires rights to be regulated or restricted by or under a law without impairing the essence of the right or freedom.
This Law is understood as an implementing law providing procedural safeguards, not a document above the Constitution or a rewriting of its rights provisions. It specifies what a public authority must establish and document when restricting a right, and the minimum preventive, remedial and oversight procedures.
2. Institutional map
| Authority | Legal basis | Role in the proposed system | Boundary |
|---|---|---|---|
| High Commission for Human Rights | Law 53 of 2008 | Monitoring, complaints, preliminary investigation within the law, reports, recommendations and awareness | Neither replaced nor subordinated to executive coordination |
| Judiciary and Public Prosecution Service | Constitution + Criminal Procedure Code 23/1971 + Public Prosecution Law 49/2017 | Investigation, trial, judicial oversight and initiation of proceedings within jurisdiction | No parallel executive body shall be created |
| Council of State and administrative judiciary | Council of State Law and its amendments | Drafting, scrutiny, advice and administrative adjudication under the legislation | Review of draft provisions and administrative decisions |
| Ministry of Justice/Human Rights Department | Current administrative organisation and government action plan | Government coordination, reports, national plan, capacity-building and data | No criminal investigations in place of the judiciary |
| Council of Representatives | Constitution and rules of procedure | Legislation, oversight and receipt of government reports | Retains independence in its legislative procedures |
| Ministries, bodies and governorates | Their sectoral laws | Implementing rights in public services and everyday decisions | Designating compliance focal points from existing staff |
3. Relevant recent developments through 4 October 2026
| File | Verified status | Effect on this draft |
|---|---|---|
| National Human Rights Plan 2026-2030 | On 7 June 2026, the Ministry of Justice announced instructions to prepare the plan and submit it to the Council of Ministers, with annual reports, indicators, a database and capacity-building. | Implementation of this Law shall be coordinated with the plan if adopted, without making entry into force conditional on its issuance. |
| Board of Commissioners of the High Commission for Human Rights | The latest verified official update, dated 18 June 2026, identified completing the selection of a new Board of Commissioners as a priority. | Individual rights and public authorities’ obligations must not depend on the appointment cycle. |
| Proposed law on combating information technology crimes | The second reading was postponed on 21 September 2026 to complete hearings and discussions with the judiciary, experts and civil society. | Highest priority for aligning criminalisation and digital evidence with expression, privacy and proportionality. |
| Draft anti-terrorism law | The first reading took place at the session of 9 September 2026. | A precise definition of terrorism, detention and trial safeguards, prohibition of torture and review of penalties. |
| Right of Access to Information Law | Discussed by the Integrity Committee on 9 September 2026 among related legislative measures. | It should establish disclosure as the default, narrow exceptions, harm and public-interest tests, and appeal. |
| Legal Assistance Law 7/2024 | Published in Iraqi Gazette No. 4770 on 22 April 2024. | To be used instead of creating a parallel legal assistance system. |
4. Why a framework law?
Iraqi experience shows that protection cannot be achieved through one sectoral law: expression intersects with criminal law, media and the digital sphere; detention with criminal procedure, prosecution and security institutions; privacy with communications, data and artificial intelligence. A “framework law” therefore imposes a general standard on public authorities, followed by review of sectoral laws for compatibility with it and the Constitution.
5. Adaptable international comparisons
| Model | Instrument | Iraqi adaptation |
|---|---|---|
| United Kingdom — Human Rights Act 1998, Section 6 | Making public authority action incompatible with rights unlawful within the legal system. | A direct duty on public authorities, respecting the hierarchy of the Iraqi Constitution. |
| New Zealand — Bill of Rights Act 1990, Sections 5-7 | Reasonable and justified limits, compatible interpretation and early legislative scrutiny. | Restriction test + impact assessment and compatibility statement for government bills. |
| South Africa — Constitution, Section 36 | A structured limitation test considering the right’s nature, purpose, extent, relationship to the restriction and less restrictive alternatives. | Detailed standards of necessity, proportionality and the least restrictive means. |
Second — Draft Law on the Protection of Public Freedoms and Human Rights
Draft Law on the Protection of Public Freedoms and Human Rights No. ( ) of ( )
In the name of the people. Presidency of the Republic. Pursuant to the decision of the Council of Representatives, ratification by the President of the Republic, and Article (61), paragraph (First), and Article (73), paragraph (Third), of the Constitution, the following law is issued:
Chapter One — General provisions and governing principles
Article (1) — Definitions
For the purposes of this Law, the following terms have the meanings specified: First — Constitution: the Constitution of the Republic of Iraq of 2005. Second — Commission: the High Commission for Human Rights established under Law No. (53) of 2008 or any replacement law. Third — Public authority: any ministry, body not affiliated with a ministry, independent body, public company, administrative unit or local authority, and any public or private person entrusted by law or contract with a public function or service, within that function or service. Fourth — Restriction: any legislation, decision, measure, omission or general or individual practice limiting the exercise of a constitutionally or legally guaranteed right or freedom. Fifth — Human rights impact assessment: a written process preceding an intervention with substantial effects on rights and freedoms, identifying the affected right, the intervention’s basis, purpose, alternatives, effects, safeguards and remedies. Sixth — Automated decision: a decision whose outcome is determined wholly or substantially by an algorithmic system or automated data processing without effective and appropriate human judgment.
Article (2) — Objectives of the Law
This Law aims to: First — Strengthen practical protection of rights and freedoms under the Constitution and laws in force. Second — Unify the rules governing restrictions on rights and freedoms and prevent arbitrary or disproportionate restrictions. Third — Incorporate assessment of impacts on rights and freedoms into legislation, public policy and major regulatory decisions. Fourth — Improve complaint, redress and oversight mechanisms and prevent retaliation against complainants and witnesses. Fifth — Develop privacy and rights protection in the digital environment and automated decision-making. Sixth — Achieve systematic alignment of laws and public policies with the Constitution and Iraq’s international human rights obligations.
Article (3) — Scope of application
First — This Law applies to federal public authorities and persons performing a federal public function or service, within that function or service. Second — Its provisions shall be observed in the Region and governorates not incorporated into a region within the constitutional division of powers, without precluding wider guarantees within their competence. Third — This Law shall not be interpreted as infringing the Council of Representatives’ independence in its legislative and oversight functions or judicial independence in deciding cases. It applies to those authorities’ administrative bodies insofar as consistent with their constitutional independence.
Article (4) — Constitutional supremacy and compatible interpretation
First — The Constitution remains the highest reference for interpreting and applying this Law. Second — Where a text legally permits more than one meaning, legislation and decisions shall be interpreted in the manner most consistent with constitutional rights and freedoms, without creating a rule expressly contradicting legislation in force. Third — This Law shall not expand a public authority’s powers or confer jurisdiction not established by the Constitution or law.
Article (5) — International treaties and standards
Interpretation of rights and freedoms shall take account of international human rights treaties ratified by Iraq under the Constitution and law. Treaty bodies’ comments and interpretations and comparative practices may guide interpretation insofar as consistent with Iraq’s constitutional and legal system.
Article (6) — Non-diminution and non-regression
No provision of this Law shall be interpreted as permitting diminution of a safeguard or right receiving wider protection under the Constitution, a law in force or an effective treaty. The more protective provision or safeguard shall apply within the legally established rules of hierarchy and conflict.
Article (7) — Immediate obligations and progressive realisation
First — Non-discrimination, prohibition of torture and ill-treatment, procedural safeguards and fundamental civil and political rights are immediately enforceable obligations under the Constitution and laws. Second — Public authorities shall progressively realise economic, social and cultural rights within available resources, using them prudently and transparently, with immediate duties of non-discrimination and protection of the minimum established by laws in force. Third — This Law shall not itself create a financial entitlement, staff post or benefit not provided in the budget or relevant legislation.
Article (8) — General duty of public authorities
First — Every public authority shall, in exercising its powers, respect, protect and facilitate the exercise of rights and freedoms within the law. Second — A public authority shall take reasonable measures to prevent foreseeable violations within its legal and practical control, investigate them administratively and refer suspected offences to the competent authority. Third — Compliance with an order from a superior or an administrative order that is manifestly unlawful shall not remove liability under existing legislation.
Chapter Two — Fundamental rights and freedoms and their safeguards
Article (9) — Equality and non-discrimination
First — All persons are equal before the law and in enjoying its protection without unlawful discrimination. Second — Different treatment is not discriminatory where based on objective, reasonable grounds, directly linked to a legitimate purpose, and necessary and proportionate to it. Third — Temporary positive measures may address established inequalities or protect groups more exposed to deprivation, provided their purpose and duration are defined and they are reviewable.
Article (10) — Right to life and personal security
Public authorities shall protect life and personal security under the Constitution and law, take reasonable measures against foreseeable, real and serious risks, and ensure immediate referral to the competent judicial authorities where an unnatural death or serious injury resulting from force or occurring in detention is suspected.
Article (11) — Liberty and protection against arbitrary arrest or detention
First — No person may be arrested, remanded, detained or restricted in movement except on a legal basis, through statutory procedures and by a competent authority. Second — Arrest, summonses, withholding documents and travel bans shall not be used as extrajudicial punishment, pressure or silencing, or to compel surrender of a right. Third — Every restriction on liberty shall be reviewable under the law and shall not continue after its basis ceases.
Article (12) — Safeguards for persons deprived of liberty
Within the limits established by law, an authority depriving a person of liberty shall: First — Record the deprivation, its place and time and the responsible authority so that verification and review are possible. Second — Inform the person of the reasons and their rights in a language they understand, and enable contact with a lawyer under the law. Third — Enable prompt notification of their whereabouts to a person of their choice, unless a temporary, reasoned restriction is legally permitted and required by a legitimate investigative necessity. Fourth — Enable competent oversight bodies to access detention facilities and records within their powers.
Article (13) — Dignity and prohibition of torture and ill-treatment
First — Human dignity is inviolable. Torture, cruel, inhuman or degrading treatment or punishment, and physical or psychological coercion are prohibited. Second — A superior’s order, exceptional circumstances or security necessity shall not justify torture. Third — Any public body receiving credible information indicating suspected torture or prohibited treatment shall preserve evidence and records in its possession and promptly refer the information to the competent judicial authority, taking lawful measures to protect victims and witnesses.
Article (14) — Fair trial and access to justice
Everyone has the right to access competent, impartial courts under the law, defend themselves, learn the grounds for a measure and appeal where legally permitted. An administrative authority shall not practically prevent court access or require an administrative complaint not mandated by law as a prerequisite to litigation.
Article (15) — Freedom of expression
First — Freedom to express opinions and receive and impart information and ideas through lawful means is guaranteed under the Constitution. Second — No administrative, employment-related or security measure may target a person merely for peacefully criticising a public authority, official or policy or exposing a matter of public interest, unless the act constitutes a specifically defined offence or breach of a defined legal duty and the response is proportionate. Third — Restrictions on expression shall be narrowly interpreted; political or administrative embarrassment or general fears unsupported by facts are insufficient justification.
Article (16) — Press and media freedom and protection of human rights defenders
First — Freedom of the press, printing, advertising, media and publication is guaranteed under the Constitution and law. Second — A journalist, rights monitor or human rights defender shall not be prevented from peaceful activity, have equipment confiscated or be required to reveal a source except on a legal basis, by a competent authority’s decision, and where necessary and proportionate. Third — Authorities shall take reasonable steps to protect journalists, monitors and activists against serious work-related danger that is known or should have been foreseen.
Article (17) — Right to public information
First — Public information held by public authorities shall be available by default, subject to exceptions expressly established by law to protect a legitimate interest. Second — Refusal shall be reasoned and specific, and confined to the protected portion where it can be separated from other information. Third — This Law does not replace dedicated access-to-information legislation governing applications, deadlines, exceptions, appeals and proactive publication. Existing publication and disclosure duties continue pending its enactment.
Article (18) — Freedom of peaceful assembly and demonstration
First — Peaceful assembly and demonstration are guaranteed; public authorities shall facilitate their exercise and protect participants and the public. Second — A statutory notification system shall not become an arbitrary prior-licensing requirement. An assembly does not lose its peaceful character merely because a formal procedure is incomplete or because of isolated individual violence not attributable to other participants. Third — Any temporal, spatial or organisational restrictions shall be defined by law and justified under Chapter Four of this Law.
Article (19) — Assembly management and use of force
First — Law enforcement authorities shall prioritise communication, negotiation, conflict resolution and less restrictive means when managing assemblies. Second — Force shall be used only where necessary and proportionate to a specific danger, distinguishing those committing unlawful acts from other peaceful participants. Third — Firearms shall be used only in legally permitted circumstances under strict standards protecting life against imminent, serious danger. Fourth — Uses of force resulting in death or serious injury shall be documented, reviewed and referred to the competent authorities.
Article (20) — Freedom to form associations and civil society organisations
First — Everyone has the right to form, join and leave associations and organisations under the law. Second — Refusal of registration, suspension or dissolution shall require a defined legal basis and a reasoned, appealable decision proportionate to the specific breach or danger. Third — Registration, funding and reporting requirements shall not be used for unjustified interference with lawful peaceful activity.
Article (21) — Public participation and petitions
Citizens shall have opportunities, under the Constitution and electoral and administrative laws, to participate in public affairs and submit petitions, proposals and complaints. Retaliation for lawful participation or good-faith provision of information to a competent oversight authority is prohibited.
Article (22) — Privacy and inviolability of the home
First — Personal and family privacy and the home’s inviolability shall be protected against arbitrary or unlawful interference. Second — A home or private premises shall not be searched, nor personal data collected or disclosed, except on a legal basis, through the competent authority’s procedures, and under necessity and proportionality standards, respecting judicial authorisation requirements wherever mandated by the Constitution or law. Third — Authorities shall take appropriate security measures to protect data and records in their possession against loss, unlawful access or use.
Article (23) — Confidentiality of correspondence and communications, and surveillance
First — The freedom and confidentiality of postal, telegraphic, telephone, electronic and other communications and correspondence are guaranteed. Monitoring, interception or disclosure requires legal and security necessity and a judicial decision wherever required by the Constitution and law. Second — Surveillance shall have a defined purpose, duration, scope and targeted persons or groups to the extent permitted by a lawful investigation, and shall be documented and supervised. Third — Indiscriminate data collection merely because of peaceful political, journalistic or civic activity is prohibited.
Article (24) — Personal data protection in the public sector
Pending dedicated legislation, public authorities processing personal data shall observe: First — A lawful purpose and legal basis, collecting only data necessary for that purpose. Second — Accuracy, updating, security, an appropriate retention period and prevention of unlawful secondary use. Third — Informing the person, where legally permitted, of the processing’s nature, their rights and avenues for objection or correction. Fourth — Enabling correction of inaccurate data and objection or review where a right or service is affected, in accordance with the law.
Article (25) — Automated decisions and artificial intelligence
First — No person shall be subject to a wholly automated decision substantially affecting a right, benefit or legal obligation unless authorised by law with appropriate safeguards. Second — According to the system’s nature, safeguards include effective human review; knowledge of the legal basis and material factors influencing the decision without disclosing legally protected secrets; data correction; and objection and appeal before a competent human decision-maker. Third — High-risk public systems capable of discrimination or widespread deprivation shall undergo human rights impact assessment and testing of data quality, security and accuracy before adoption and periodically thereafter.
Article (26) — Rights in the digital environment and internet access
First — Rights and freedoms enjoy the same protection when exercised digitally. Second — Broad internet shutdowns or blocking of platforms or public communications services require an express legal basis, a legitimate purpose, necessity and proportionality; the measure must have defined scope and duration, reasons and review. Third — Network management, blocking or throttling shall not target political criticism, journalism or peaceful protest as such.
Article (27) — Freedom of thought, conscience, belief and religion
Freedom of thought, conscience, belief and religious practice is guaranteed under the Constitution and law. Coercion to adopt or abandon an idea, religion or belief is prohibited. Restrictions on outward manifestations of practice shall undergo tests of legality, necessity and proportionality.
Article (28) — Freedom of movement, residence and return
Every Iraqi has freedom of movement, travel and residence inside and outside Iraq under the law, and shall not be exiled, expelled or denied return to Iraq. Travel bans or movement restrictions require a competent authority, legal basis and legitimate purpose, shall be limited to the necessary duration and extent, and shall be appealable under the law.
Chapter Three — Procedural safeguards for economic, social and cultural rights
Article (29) — Work and occupational rights
First — Public bodies shall observe equality, transparency and equal opportunity in public recruitment, promotion, discipline and termination of service. Second — Forced labour is prohibited under the Constitution, and trade union and occupational rights are protected by the relevant laws. Third — This Law creates no right to appointment outside the staffing establishment or budget, but prohibits discrimination and arbitrary treatment in procedures for obtaining a legally established opportunity or benefit.
Article (30) — Education
Public education bodies shall ensure non-discrimination, clearly publish admission, scholarship, assessment and disciplinary criteria and objection procedures, provide reasonable accommodation for persons with disabilities where legally required, and protect students against arbitrary deprivation of legally established education.
Article (31) — Health
Public health services shall observe equality, non-discrimination, confidentiality of medical information and informed consent where legally required. Clear mechanisms shall allow complaints and review of decisions materially affecting access to or continuation of a service.
Article (32) — Social protection and an adequate standard of living
When administering social protection programmes and statutory benefits, eligibility criteria shall be published, refusals, suspensions and recovery decisions reasoned, and review available. A technical error, remediable omission or unreviewed automated decision shall not permanently extinguish an entitlement without an appropriate opportunity for correction and human review.
Article (33) — Housing, water and the environment
When deciding on eviction, demolition, disconnection of essential services or responses to environmental hazards, authorities shall observe statutory rights and procedures, provide suitable notice, clear reasons and opportunities to object wherever required, and choose the alternative least likely to cause disproportionate harm to the most vulnerable groups.
Article (34) — Culture, language and diversity
Public authorities shall respect constitutional cultural, linguistic, religious and ethnic diversity and ensure, when designing public services and programmes, that unjustified exclusion is prevented and cultural participation is available within the law.
Article (35) — Accessibility and reasonable accommodation
Public authorities shall work to remove physical, communication and procedural barriers preventing persons with disabilities or groups with particular needs from accessing rights and services. They shall provide reasonable accommodation unless it is shown to impose a disproportionate burden under the relevant legislation.
Article (36) — Preventing unjustified regression in social protection
A public authority proposing a policy that substantially reduces a statutory social benefit or service shall explain its necessity, alternatives, distributional impact and measures protecting those most affected. This shall not preclude lawful fiscal or administrative reform based on law and objective criteria.
Article (37) — Financial impact of social rights
First — Financial obligations shall be implemented within the budget and sectoral laws in force, prioritising existing legal obligations and non-discrimination. Second — Lack of a financial allocation shall not justify discrimination or failure to fulfil a funded obligation expressly established by law. Third — Policies with major financial effects shall assess funding alternatives, sustainability and impacts on different groups.
Chapter Four — Rules on restricting rights and freedoms
Article (38) — Principle of legality
A right or freedom shall be restricted only by law or under clear legislative delegation specifying the authority, purpose and scope. A circular, administrative order or instructions shall not independently create a new restriction without a basis in a law in force.
Article (39) — Legitimate purpose
A restriction must protect an interest or purpose recognised by the Constitution or law and directly connected with the right concerned. Merely avoiding criticism or political or administrative embarrassment, or wishing to display discipline, is not in itself a legitimate purpose.
Article (40) — Necessity
The authority imposing a restriction shall demonstrate a real, specific need that cannot reasonably be addressed without intervention, relying on facts or a reviewable assessment. It shall reassess necessity when the circumstances underlying the decision change.
Article (41) — Proportionality and the least restrictive means
A restriction shall not exceed what is required for its legitimate purpose, and the expected benefit shall be proportionate to the harm to the right. The least restrictive means shall be chosen where reasonably effective. A general ban shall not be used where a measure limited by time, place or individual can achieve the objective.
Article (42) — Non-discrimination and preservation of the right’s essence
A restriction shall not be applied discriminatorily or selectively without objective grounds, nor empty a right of substance or effectively disable it contrary to Article (46) of the Constitution.
Article (43) — Reasons and duration
As far as the circumstances permit, a general decision restricting a right shall state its legal basis, purpose, geographical or personal scope, duration, issuing authority and grievance or review procedure. A temporary restriction shall not be renewed automatically without a written reassessment.
Article (44) — Burden of justification and records
The authority imposing a restriction is responsible for documenting the elements justifying its legality, necessity and proportionality. It shall retain records allowing review by the judiciary and competent oversight bodies while respecting legally protected confidentiality.
Article (45) — Exceptional circumstances and emergencies
Exceptional measures remain subject to the Constitution and laws in force. Their duration, location and purpose shall be defined as far as possible and reviewed periodically. Exceptional circumstances shall not justify torture, enforced disappearance, collective punishment, suspension of judicial oversight or elimination of political opponents.
Chapter Five — Prevention, compliance and legislative quality
Article (46) — Human rights impact assessment
The competent government body shall conduct a written human rights impact assessment before referring a bill or issuing regulations, instructions, policy or a general regulatory decision substantially restricting a right or freedom, processing personal data extensively, or adopting a high-risk automated system.
Article (47) — Contents of the impact assessment
As appropriate, the assessment shall include: First — Affected rights and groups. Second — Legal basis and legitimate purpose. Third — Alternatives, including non-intervention. Fourth — Necessity, proportionality and the least restrictive means. Fifth — Potential discriminatory impact and mitigating measures. Sixth — Oversight, remedies, duration and review. Seventh — Costs, implementation effects and data sources. Eighth — Potential conflicts with the Constitution or international obligations and means of addressing them.
Article (48) — Human rights compatibility statement for government bills
A bill referred by the Council of Ministers shall include a concise statement explaining its compatibility with constitutional rights and freedoms and the result of any required impact assessment. The statement supports legislative scrutiny and does not restrict the powers of the Council of Representatives or Federal Supreme Court.
Article (49) — Review of existing regulations, instructions and orders
Public bodies shall review the regulations, instructions, orders, circulars and procedural forms they issue or apply that affect rights and freedoms. They shall repeal or amend those lacking a legal basis, exceeding their purpose or becoming disproportionate, while respecting vested rights and legal positions protected by law.
Article (50) — Public contracts and delegated services
Contracts and concessions entrusting a private entity with a public service substantially affecting individuals shall include appropriate provisions on respect for rights, data protection, complaints, audit and cooperation with oversight, and proportionate contractual sanctions for breach, without prejudice to other legal liabilities.
Article (51) — Rights and freedoms compliance focal point
Every covered public body shall designate an existing employee or unit to coordinate compliance with this Law, following up impact assessments, training, reports, recommendations and procedural improvements. This Article creates no new staff post and confers no criminal investigative powers on the compliance function.
Article (52) — Risk-based training
Public bodies shall establish training programmes according to risk level, prioritising staff in law enforcement, detention, health, social protection, education, data and automated systems. Training shall be assessed through knowledge, behaviour and practical outcomes, not attendance figures alone.
Article (53) — Auditable records and data
Under archiving and confidentiality laws, authorities shall retain records needed to explain rights-restricting decisions and trace approvals, amendments and data access. They shall publish aggregate indicators that disclose neither personal data nor legally protected information.
Article (54) — Access to information, forms and complaint channels
Public bodies shall make essential information, forms and complaint channels clear and accessible through digital and non-digital means, reasonably accounting for disability, language, digital illiteracy and areas with limited connectivity.
Article (55) — Protection of complainants, reporters and witnesses against retaliation
Retaliation for a good-faith complaint, testimony or information given to a competent authority is prohibited. Witness and whistleblower protection laws and relevant disciplinary rules shall apply. Liability for an inaccurate report requires criminal intent or bad faith to be established under the law.
Chapter Six — Complaints, redress and institutional cooperation
Article (56) — Right to complain and obtain redress
Under the laws in force, everyone may pursue a complaint, grievance, objection, appeal or action before the competent authority. Exhaustion of a complaint before an administrative or oversight body shall not be required before court access unless mandated by law.
Article (57) — High Commission for Human Rights
The Commission shall exercise its powers to protect rights and freedoms, receive complaints, conduct preliminary investigations, monitor and recommend under its governing law. This Law neither creates a replacement commission nor subjects it to executive direction.
Article (58) — Referral of complaints of a criminal nature
Where a complaint or credible information indicates a suspected offence, including torture, coercion or assault in detention, the receiving body shall preserve information and evidence and promptly refer it to the judiciary, Public Prosecution Service or legally authorised investigative body. No executive or oversight body may conduct criminal investigations beyond its legal powers.
Article (59) — Administrative grievances and administrative courts
Where legally required, public bodies shall specify the review route and time limit in decisions subject to administrative grievance or appeal. The powers of the Council of State, administrative courts and other judicial authorities remain reserved under the legislation in force.
Article (60) — Urgent protection
Priority shall be given to complaints indicating imminent, serious danger to life, physical safety or liberty, risk of torture or disappearance, or irreparable harm. The competent authority shall take legally authorised temporary or urgent measures without unjustified delay.
Article (61) — Forms of remedy and reparation
According to jurisdiction and law, remedies may include stopping, cancelling or amending an unlawful measure; restoring the previous position or right; compensation; correction of records or data; an apology or legally permitted disclosure; and measures preventing recurrence.
Article (62) — Confessions obtained through coercion
No confession proven to have been obtained through coercion or torture shall be relied upon, in accordance with the Constitution and law. Exclusion shall not prevent investigation and prosecution of the torture itself on independent, lawful evidence.
Article (63) — Protection of witnesses, experts, informants and victims
The protective measures under the Protection of Witnesses, Experts, Informants and Victims Law No. (58) of 2017 and its regulations and instructions shall apply. Risks shall be referred and assessed without unnecessary disclosure of identity or location.
Article (64) — Legal assistance
Eligible persons shall receive assistance under Legal Assistance Law No. (7) of 2024 and its regulations and instructions. The centre and mechanisms established by that Law shall be used rather than creating a parallel service under this Law.
Article (65) — Cooperation with the Commission and oversight bodies
Public bodies shall cooperate with the Commission and authorised oversight bodies within their powers, supplying information and records that the law permits. Refusal to disclose legally protected information shall be reasoned to the extent permitted by law.
Article (66) — Responses to oversight recommendations
A public body shall provide a reasoned written response to a recommendation from the Commission or an authorised oversight body within sixty days of receipt, unless a shorter statutory period or urgent circumstances require an earlier response. It shall state what was accepted or rejected, the reasons and implementation steps.
Article (67) — Human Rights Department of the Ministry of Justice
Within its powers, the Ministry of Justice’s Human Rights Department shall coordinate government policy, human rights plans, international reporting, capacity-building, data and government legislative review. It shall neither investigate criminal matters nor replace the Commission, judiciary or Public Prosecution Service.
Chapter Seven — Oversight, measurement and legislative review
Article (68) — Annual compliance report
Every covered public body shall prepare a concise annual report on major general restrictions it issued, impact assessments conducted, complaint trends, corrective measures, training and available indicators, concealing personal data and legally confidential information.
Article (69) — Independent monitoring by the Commission
Within its governing law and independence, the Commission may include in its annual report an assessment of this Law’s implementation, general trends and priority recommendations. Its report shall not require prior executive approval.
Article (70) — National human rights indicators
After consulting the Commission and competent authorities, the Ministry of Justice shall coordinate with the Ministry of Planning on measurable national indicators covering inputs, processes and outcomes, defining data sources, meanings and update frequency, while protecting data and avoiding disclosure that identifies individuals.
Article (71) — Public consultation
Before adopting a bill or public policy with broad, direct effects on rights and freedoms, the government body shall conduct appropriate consultation over a reasonable period with affected parties, experts and civil society organisations, unless the circumstances prevent it. A summary shall explain the comments and how they were addressed, or why they were not adopted.
Article (72) — Parliamentary oversight
The government shall submit the reports required by this Law to the Council of Representatives. Its competent human rights committee may request information and hearings within parliamentary powers, without interfering in pending court cases, ongoing investigations or the Commission’s independence.
Article (73) — Comprehensive review of existing legislation
In coordination with the Council of State and sectoral bodies, government authorities shall inventory legislation, regulations and instructions restricting rights and freedoms, identify conflicting, ambiguous or outdated provisions, and propose express amendment or repeal. A substantial legal conflict shall not be corrected merely through lower-ranking instructions.
Article (74) — Legislative harmonisation priorities
Review or legislation shall prioritise, according to each subject’s status when this Law enters into force: First — Expression, assembly and peaceful demonstration. Second — Access to information. Third — Information technology offences and digital evidence. Fourth — Counterterrorism and trial and detention safeguards. Fifth — Personal data protection and digital privacy. Sixth — Prevention of torture and ill-treatment. Seventh — Enforced disappearance and missing persons where dedicated legislation is needed. Eighth — Non-discrimination and equality. Ninth — Criminal or administrative provisions restricting expression, publication, journalism or civic work.
Article (75) — Periodic review of the Law
The effects of this Law shall be reviewed every three years from entry into force. After obtaining the opinions of the Commission, Council of State and competent authorities, the Council of Ministers shall prepare a report on effectiveness, administrative and financial costs, gaps and conflicts proposed for correction, submit it to the Council of Representatives, and publish it subject to legally protected information.
Chapter Eight — Implementation, funding and final provisions
Article (76) — National implementation plan
Within one hundred and eighty days of entry into force, the Council of Ministers shall approve a three-year implementation plan prepared by the Ministry of Justice in coordination with relevant bodies and after obtaining the Commission’s opinion. It shall cover responsibilities, projects, priorities, indicators, timetables, costs and funding sources, and be coordinated with the National Human Rights Plan when that plan is in force.
Article (77) — Executive and legislative inventory
First — Public bodies shall complete an inventory of regulations, instructions, orders, circulars and forms restricting rights within twelve months of entry into force. Second — The government shall complete the priority legislation inventory within eighteen months and establish a programme for referring necessary amendment or legislative bills. Third — These periods shall not postpone any already effective right or safeguard.
Article (78) — Funding and prevention of institutional duplication
First — Administrative duties shall be implemented through existing structures and staff wherever possible. This Law shall not create an independent authority, directorate-general or new permanent posts. Second — Necessary additional expenditure on training, digital systems, integration and oversight shall be funded from budget allocations or legally approved appropriations after the financial impact is stated. Third — Any funding increase shall be tied to measurable outputs and indicators and subject to financial oversight and existing rules.
Article (79) — Implementing instructions
Within one hundred and eighty days of entry into force, the Council of Ministers shall issue instructions facilitating implementation on a Ministry of Justice proposal, after obtaining the opinions of the Commission, Council of State and competent authorities. Instructions shall not create a new restriction on a right or freedom without a legislative basis.
Article (80) — Entry into force and relationship with other legislation
First — This Law shall not implicitly repeal any law in force. Conflicts requiring legislative amendment shall be addressed through express amendment or repeal provisions referred to the Council of Representatives. Second — Existing civil, disciplinary and criminal liabilities remain applicable; this Law itself creates no new offence or penalty. Third — This Law shall be published in the Official Gazette and take effect ninety days after publication.
Statement of reasons
This Law is enacted to strengthen effective protection of the rights and freedoms in the Constitution of the Republic of Iraq of 2005; establish uniform rules against restrictions without legal basis, necessity or proportionality; improve legislative and public policy quality through rights impact assessment; regulate cooperation among public bodies, the High Commission for Human Rights, judiciary and Public Prosecution Service within constitutional powers; clarify complaint and redress pathways; respond to digital change and protect privacy, data and online rights; prevent institutional duplication; and systematically harmonise national legislation with the Constitution and Iraq’s international obligations.
Third — Explanatory memorandum and legislative policy
1. Nature of the proposal
The proposal is not a “bill of rights” duplicating the Constitution, but a law of cross-cutting safeguards defining public authorities’ duties when implementing and restricting rights. This approach reduces the need for new institutions and establishes shared standards across sectoral laws, leaving offences, detailed procedures and technical powers to specialised legislation.
2. Constitutional test
| Area | Principal constitutional basis | Draft articles | Test result |
|---|---|---|---|
| Equality and non-discrimination | Article 14 and related provisions | Articles 9, 42, 7 | Does not create protected categories outside the Constitution for punitive purposes; establishes an objective standard for differential treatment. |
| Life, liberty and security | Article 15 | 10-13 | Links restrictions to legal authority and procedure, and prevents arrest from being used as an administrative penalty. |
| Privacy | Articles 17 and 40 | 22-25 | Preserves judicial authorization where constitutionally required and adds safeguards for data and automated procedures. |
| Expression and media | Article 38 | 15-17 | Prohibits restrictions based solely on criticism without precluding precisely defined offences established by applicable law. |
| Assembly and demonstrations | Article 38/Third | 18-19 | Bases regulation on facilitation and proportionality and prevents notification from becoming an arbitrary authorization requirement. |
| Associations | Article 39 | 20 | Protects establishment and membership and requires reasons and avenues of appeal for restrictive decisions. |
| Thought and belief | Articles 37, 42 and 43 | 27 | Prohibits coercion and subjects restrictions on external manifestations to the general test. |
| Movement | Article 44 | 28 | Prohibits exile and denial of return, and subjects travel bans to competence and necessity requirements. |
| Restriction of rights | Article 46 | 38-45 | Translates the requirements of a legal basis and respect for the essence of a right into a uniform practical test. |
| Separation of powers | Article 47 | 3, 48, 57–67, 72 | Separates legislation, oversight, administration and judicial investigation, and prevents the creation of parallel executive powers. |
3. Preferred legislative route
The preferred route is for the Council of Ministers to introduce the text as a bill under Article (60/First) of the Constitution after completing the financial impact assessment and institutional consultations. This is preferable because the draft creates executive duties, requires a national plan, training and data systems, and intersects with the powers of the judiciary and the Commission. Previous Iraqi constitutional court decisions have established the need to respect the separation of powers and avoid imposing financial burdens or duties on another authority without the appropriate procedure and consultation.
4. No new offences or penalties
The decision not to include a new chapter of offences and penalties is deliberate. A framework law protecting expression, assembly and privacy could itself become a source of restriction if broadly worded punitive provisions were added. Existing offences and penalties therefore apply where their constituent elements are satisfied, while provisions affecting rights in the Penal Code and special laws are to be reviewed within the legislative harmonization package.
5. Limits of complaints and investigation powers
Chapter Six is consistent with Federal Supreme Court Decision No. 262/Federal/2022, issued on 24 May 2023. That decision affirmed that authorities may not create powers for themselves that are not provided for in the Constitution or legislation, and that receiving criminal complaints and investigating offences, including torture and coerced confessions, are governed by the Criminal Procedure and Public Prosecution laws. The Commission retains its competence to receive human rights complaints, conduct preliminary investigations and refer them under its governing law. The draft therefore grants neither the Ministry of Justice nor an executive office independent criminal investigation powers.
6. Article-by-article commentary
| Article | Title | Legislative rationale |
|---|---|---|
| 1 | Definitions | Defines only newly introduced terms, avoiding excessive definitions or changes to established constitutional meanings. |
| 2 | Objectives of the law | Confines the law's purpose to procedural protection, harmonization and prevention of arbitrary restrictions. |
| 3 | Scope of application | Protects the federal system and separation of powers and specifies when the law applies to a private service provider. |
| 4 | Constitutional supremacy and compatible interpretation | Affirms constitutional supremacy and permits compatible interpretation without allowing a judge or administrative authority to set aside an explicit provision. |
| 5 | International treaties and standards | Connects interpretation to treaties in force and treats international interpretations as guidance rather than a source of powers outside the Iraqi system. |
| 6 | Non-derogation and non-retrogression | Prevents the law from being used to reduce a higher level of protection already in place. |
| 7 | Immediate obligations and progressive realization | Distinguishes immediate obligations from the progressive realization of social rights and prevents the creation of unfunded financial entitlements. |
| 8 | General duty of public authorities | Establishes a general duty for public authorities and prevents reliance on manifestly unlawful administrative orders as a defence. |
| 9 | Equality and non-discrimination | Turns equality from a slogan into a standard: differential treatment requires an objective reason, a relevant connection and proportionality. |
| 10 | Right to life and personal security | Combines preventive protection of life with a duty to refer deaths and serious injuries to the judiciary. |
| 11 | Liberty and security against arbitrary arrest or detention | Targets unlawful arrest, travel bans and administrative pressure while preserving lawful procedures. |
| 12 | Safeguards for persons deprived of liberty | Establishes an auditable minimum for detention records, notification, access to counsel, communication and oversight. |
| 13 | Dignity and prevention of torture and ill-treatment | Affirms the absolute prohibition of torture and ensures preservation of evidence and referral without creating a new executive investigator. |
| 14 | Fair trial and access to justice | Protects direct access to courts where provided by law and prevents artificial administrative barriers. |
| 15 | Freedom of expression | Protects peaceful criticism and public-interest disclosure while preserving liability for defined offences and compliance with legal duties. |
| 16 | Freedom of the press and media and protection of human rights defenders | Addresses risks facing journalists and human rights defenders through legal authority, competence, necessity and proportionality rather than absolute immunity. |
| 17 | Right to public information | Provisionally establishes disclosure as the default, leaving detailed procedures to a dedicated access-to-information law. |
| 18 | Freedom of peaceful assembly and demonstration | Shifts the approach to regulating demonstrations from authorization to facilitation and prevents attributing isolated individual violence to all participants. |
| 19 | Management of assemblies and use of force | Establishes a graduated approach to force based on de-escalation, necessity, proportionality and documentation. |
| 20 | Freedom to establish associations and civil society organizations | Complements the Non-Governmental Organizations Law by guaranteeing reasons and appeals and preventing abuse of administrative requirements. |
| 21 | Public participation and petitions | Protects participation and petitions from administrative retaliation and strengthens accountability without changing electoral laws. |
| 22 | Privacy and inviolability of the home | Translates privacy protection into practical rules governing searches, data collection and record security. |
| 23 | Confidentiality of correspondence and communications and surveillance | Subjects communications surveillance to legal authority, necessity and judicial authorization where constitutionally required, and prohibits generalized political surveillance. |
| 24 | Personal data protection in the public sector | Establishes interim principles for protecting data within the public sector pending comprehensive specialist legislation. |
| 25 | Automated decisions and artificial intelligence | Prevents automated deprivation of rights that cannot be understood or reviewed, and requires assessment of high-risk government systems. |
| 26 | Rights in the digital environment and access to the internet | Affirms that rights do not disappear online and sets a strict test for widespread shutdowns and blocking. |
| 27 | Freedom of thought, conscience, belief and religion | Reflects constitutional protection of thought, conscience and religion and prohibits coercion, while subjecting regulation of outward manifestations to the general test. |
| 28 | Freedom of movement, residence and return | Protects freedom of movement and an Iraqi's right of return and prohibits open-ended or unchallengeable administrative travel bans. |
| 29 | Employment and occupational rights | Applies equality and transparency to public employment without turning the law into an instrument for appointments or staffing expansion. |
| 30 | Education | Adds procedural safeguards for admissions, scholarships and discipline without intervening in sectoral education policy. |
| 31 | Health | Focuses on non-discrimination, confidentiality, consent and complaints rather than creating new financial entitlements to treatment. |
| 32 | Social protection and an adequate standard of living | Addresses automation and documentation errors in social protection and guarantees opportunities for correction and human review. |
| 33 | Housing, water and the environment | Requires procedural safeguards and proportionality in evictions, services and environmental risks without overriding sectoral laws. |
| 34 | Culture, language and diversity | Protects constitutional diversity and prevents unjustified exclusion in the design of services and programmes. |
| 35 | Accessibility and reasonable accommodation | Links accessibility to reasonable accommodation, leaving the disproportionate-burden standard to the relevant legislation. |
| 36 | Prevention of unjustified retrogression in social protection | Prevents unjustified reductions in social protection without prohibiting legitimate fiscal reform. |
| 37 | Financial implications of social rights | Regulates the relationship between social rights and the budget and prevents insufficient appropriations from being used to excuse discrimination. |
| 38 | Principle of legality | Gives effect to constitutional Article 46 by prohibiting restrictions created through subordinate orders without legislative authorization. |
| 39 | Legitimate aim | Prevents political embarrassment or criticism from being treated as a legitimate aim for restricting liberty. |
| 40 | Necessity | Shifts the burden of demonstrating need from the citizen to the authority restricting the right and prohibits restrictions based on general assumptions. |
| 41 | Proportionality and the least restrictive means | Makes proportionality and the least restrictive alternative separate standards open to judicial and oversight examination. |
| 42 | Non-discrimination and respect for the essence of the right | Prevents selective application of restrictions and translates the prohibition on impairing the essence of a right into an operational rule. |
| 43 | Reasons and duration | Specifies requirements for reasons and duration and prohibits automatic renewal of temporary restrictions. |
| 44 | Burden of justification and recordkeeping | Creates an audit trail enabling courts and oversight bodies to examine the grounds for a decision rather than rely on a subsequent assertion. |
| 45 | Exceptional circumstances and emergencies | Preserves the state's ability to respond to emergencies while establishing limits that cannot be overridden under cover of exceptional circumstances. |
| 46 | Human rights impact assessment | Brings human rights into decision-making before harm occurs, rather than only afterwards. |
| 47 | Content of the impact assessment | Standardizes the minimum content of an impact assessment so it does not become a formal template without analysis. |
| 48 | Human rights compatibility statement for government bills | Gives the Council of Ministers, Council of State and Council of Representatives early human rights information without constraining legislative or judicial authority. |
| 49 | Review of regulations, instructions and orders in force | Addresses a major source of practical restrictions: outdated instructions, circulars and forms that exceed the law. |
| 50 | Public contracts and delegated services | Extends the duty to respect rights to private contractors performing public functions, using contractual and oversight mechanisms. |
| 51 | Rights and freedoms compliance focal point | Ensures a coordinating officer within each body without creating new directorates or posts. |
| 52 | Risk-based training | Shifts training from counting participants to managing risks and measuring actual impact. |
| 53 | Auditable records and data | Preserves administrative evidence required for review and balances transparency with data protection and confidentiality. |
| 54 | Accessibility of information, forms and complaint channels | Prevents digital channels from themselves becoming barriers to those unable to use them. |
| 55 | Protection of complainants, reporting persons and witnesses against retaliation | Prevents retaliation against good-faith complainants or witnesses while preserving legal liability for deliberately false reports. |
| 56 | Right to complain and obtain a remedy | Brings existing remedies together and prevents an administrative step not prescribed by law from being imposed before access to courts. |
| 57 | High Commission for Human Rights | Affirms that the existing Commission is the competent national institution and does not create a parallel body. |
| 58 | Referral of complaints of a criminal nature | Implements the Federal Court's principle in Decision 262/Federal/2022 by separating the receipt of human rights complaints from criminal investigation outside the recipient's competence. |
| 59 | Administrative grievance and administrative justice | Preserves administrative justice and existing grievance procedures while making them clearer to the person affected by a decision. |
| 60 | Urgent protection | Creates an operational priority principle for irreparable harm without inventing a new judicial measure. |
| 61 | Forms of remedy and reparation | Brings possible forms of reparation together within jurisdictional limits, rather than confining remedies to monetary compensation. |
| 62 | Confessions obtained under coercion | Strengthens the rule excluding coerced confessions and ensures that torture can be prosecuted using independent evidence. |
| 63 | Protection of witnesses, experts, informants and victims | Refers to the existing protection law rather than establishing a parallel protection programme. |
| 64 | Legal aid | Uses Legal Aid Law 7/2024 and its centre rather than duplicating expenditure and powers. |
| 65 | Cooperation with the Commission and oversight bodies | Regulates cooperation with oversight bodies and requires reasons for withholding legally protected information. |
| 66 | Responses to oversight recommendations | Turns an oversight recommendation from open-ended correspondence into a measurable cycle of reasoned responses, without making the recommendation itself a binding executive order. |
| 67 | Human Rights Department of the Ministry of Justice | Affirms the Ministry of Justice's role in coordination, reporting and planning and prevents encroachment on the Commission's or judiciary's powers. |
| 68 | Annual compliance report | Establishes an annual compliance report focused on restrictions, impacts, complaints and outcomes rather than activities alone. |
| 69 | Independent monitoring by the Commission | Protects the Commission's independence in assessing the law and prevents its report from being subject to government approval. |
| 70 | National human rights indicators | Creates a shared national measurement framework and requires source quality and data protection. |
| 71 | Public consultations | Introduces public consultation for policies with broad effects and requires publication of how comments were addressed. |
| 72 | Parliamentary oversight | Strengthens parliamentary oversight while clearly prohibiting interference in proceedings and investigations or the Commission's independence. |
| 73 | Comprehensive review of legislation in force | Addresses legislative conflict explicitly rather than attempting to repair higher-ranking legislation through subordinate instructions. |
| 74 | Legislative harmonization priorities | Establishes a realistic harmonization list focused on issues most closely affecting freedoms when the draft was prepared. |
| 75 | Periodic review of the law | Requires periodic review to prevent the law from becoming a rigid, unevaluated text. |
| 76 | National implementation plan | Turns legislation into a three-year implementation programme with specified costs, responsibilities and indicators. |
| 77 | Executive and legislative inventory | Requires an inventory within clear deadlines while preventing those deadlines from being interpreted as suspending existing rights. |
| 78 | Funding and prevention of institutional duplication | Restricts administrative expansion and links any additional funding to the budget, outcomes and oversight. |
| 79 | Implementing instructions | Permits necessary implementation details while preventing instructions from creating restrictions not established by the legislature. |
| 80 | Entry into force and relationship with other legislation | Avoids implied repeal and transitional disputes, affirms that no new offences are created and allows ninety days for preparation. |
Part Four — Post-enactment implementation plan
1. Implementation phases
| Period | Main activities | Lead/partner body | Output |
|---|---|---|---|
| From publication to entry into force (90 days) | Internal preparation; initial inventory of high-impact decisions; designation of teams to prepare instructions; preparation of impact assessment templates. | General Secretariat of the Council of Ministers/Ministry of Justice and covered bodies | Readiness for entry into force without new structures |
| 0–180 days from entry into force | Designation of compliance focal points; issuance of instructions; approval of the three-year implementation plan; preparation of the impact assessment and compatibility statement methodology; adoption of an initial indicator framework. | Council of Ministers, Ministry of Justice, Ministry of Planning and covered bodies, with input from the Commission and Council of State | Funded plan + standardized working tools |
| 6–12 months | Application of impact assessment to covered government proposals; training of high-risk groups; completion of the inventory of instructions and circulars; publication of complaint procedures. | Ministries, agencies and service bodies | Application of the law in everyday decisions |
| 12–18 months | Completion of the inventory of priority laws; referral of the first package of harmonization amendments; first annual compliance reports. | Council of Ministers, sectoral bodies and Council of State | Reduction of the most significant legal conflicts |
| 18–24 months | Stable data and indicator framework; audit of high-risk government automated systems; assessment of accessibility of channels and services. | Ministry of Justice/Ministry of Planning/sectoral bodies | Effective measurement, transparency and digital improvement |
| 24–36 months | Assessment of implementation impact; correction of gaps; funding review; preparation of the first comprehensive assessment ahead of the triennial review. | Council of Ministers, Commission and parliamentary oversight bodies | Transition from formal compliance to results management |
2. Responsibility matrix
| Body | Responsibility | Timing | Evidence of completion |
|---|---|---|---|
| Council of Ministers | Approval of the plan, instructions, government reports and harmonization package | 180 days/periodic | Approval and referral decisions and reports |
| Ministry of Justice/Human Rights Department | Coordination of implementation, methodology, indicators, capacity building, international reporting and government review | Ongoing | Progress reports and standardized methodologies |
| Ministry of Planning | Indicator methodology, data quality and alignment with national planning | 180 days, then annually | Documented indicator and data dictionary |
| Ministry of Finance | Financial impact scrutiny and funding of approved programmes within the budget | Budget cycle | Approved costs and funding linked to outputs |
| Council of State | Scrutiny, drafting, advice and administrative justice within its competence | As referred | More consistent texts and clear appeal procedures |
| High Commission for Human Rights | Independent monitoring; complaints under its governing law; input on the plan and instructions; independent annual report | Ongoing/annual | Independent assessment and recommendations |
| Supreme Judicial Council and Public Prosecution Service | Investigation, adjudication and fair-trial safeguards; consultative participation on provisions affecting judicial competence | As provided by law | Avoidance of duplicated investigations and protection of judicial independence |
| Ministries, agencies and governorates | Day-to-day implementation, compliance focal points, impact assessment, reporting and review of orders and instructions | From entry into force | Measurable sectoral compliance |
| Council of Representatives | Legislation and oversight; receipt of government reports and consideration of harmonization amendments | According to the legislative cycle | Oversight and compatible legislation |
3. Key performance indicators (KPIs)
| Indicator | Measurement method | Target | Verification source |
|---|---|---|---|
| Designation of compliance focal points | Percentage of covered federal bodies designating a compliance focal point from existing staff | 100% within 180 days | Ministry of Justice/official correspondence |
| Human rights impact assessment | Percentage of covered government bills accompanied by an impact assessment and compatibility statement | 100% after adoption of the methodology | General Secretariat/Council of State |
| Inventory of subordinate rules | Percentage of bodies completing an inventory of instructions, orders and circulars | 100% within 12 months | Institutional reports |
| Responses to Commission recommendations | Percentage of received recommendations given a reasoned response within 60 days | Year 1 baseline, followed by an upward trend | Relevant bodies/Commission |
| Urgent complaints | Median time to refer cases involving serious risk to the competent body | Baseline in the first 6 months, followed by reduced delays | Complaint and referral records |
| Legislative harmonization | Referral of the first package of amendments to priority laws | Within 18 months | Referred bills |
| High-risk automated systems | Percentage of identified high-risk systems subjected to impact assessment and human review | 100% within 24 months after identification | Government register/audit reports |
| Training | Percentage of high-risk staff groups passing a post-training competency assessment | Annual target based on staff numbers | Pre-/post-tests and behavioural indicators |
| Transparency | Percentage of bodies publishing an annual compliance report meeting the standardized minimum requirements | 100% after the first year | Official websites |
4. Monitoring and evaluation mechanism
Implementation follows an annual cycle beginning with each body's plan and human rights risks, followed by indicator collection, a compliance report and corrective recommendations. Government coordination led by the Ministry of Justice must be clearly separated from independent monitoring by the Commission. Evaluation should measure outcomes, such as fewer decisions annulled for inadequate reasoning or improved complaint response times, rather than merely counting workshops and meetings.
Part Five — Financial impact and cost model
| Cost category | Initial classification | Items requiring pricing | Funding source |
|---|---|---|---|
| Coordination and compliance focal points | Low | Existing staff, meetings and methodologies | Existing appropriations |
| Training for high-risk roles | Medium | Staff numbers, training hours, trainers, tests and governorates | Budget + lawful technical cooperation |
| Impact assessment and reporting methodologies | Low–medium | Template development, legal and data expertise, updates | Existing appropriations/reform projects |
| Digital systems and data | Medium to high, depending on scope | Database integration, information security, licences, hosting and maintenance | Investment/operating budget |
| Strengthening Commission capacity | Determined through independent assessment | Actual staffing, geographical coverage and systems requirements without compromising independence | Budget under its governing law |
| Legal aid | Under Law 7/2024 | Demand, fees, coverage and eligibility criteria | Statutory mechanisms and relevant budget |
| Legislative review | Low–medium | Legal teams, experts, consultations and publication | Existing institutional budgets |
Costing methodology within 180 days
- Quantify each activity in priceable units: trainees, systems, integration points, expert-days, software licences, hosting and maintenance costs.
- Separate capital expenditure (CAPEX) from operating expenditure (OPEX), and specify each digital asset's useful life, replacement cycle and maintenance requirements.
- Identify what is already financed within budgets and what constitutes a net additional cost, preventing existing salaries from being counted twice.
- Present three scenarios: mandatory minimum, standard implementation and expanded implementation, showing each scenario's effect on indicators.
- Do not make the continuity of core functions dependent on donor funding. International technical cooperation is permissible subject to transparency and preservation of independence and statutory competence.
- Link every additional item to a measurable outcome and Ministry of Finance approval before its inclusion in the budget.
Part Six — Priority legislative harmonization matrix
| Legislation/topic | Status as of 4/10/2026 | Harmonization standard | Priority |
|---|---|---|---|
| Freedom of expression, assembly and peaceful demonstration | A bill has undergone readings and discussion; entry into force of a new comprehensive federal law had not been verified by the research date. | Notification rather than arbitrary authorization; presumption of peacefulness; defined restrictions; proportionality; use of force; protection of journalists and observers. | Very high |
| Right of access to information | Remained under parliamentary discussion; considered by the Integrity Committee on 9 September 2026. | Disclosure as the default; proactive publication; narrow exceptions; harm and public-interest tests; deadlines and independent, effective appeal. | Very high |
| Combating information technology offences | A legislative proposal in progress; its second reading was postponed on 21 September 2026 for further discussion and hearings. | Precise definitions; no criminalization of peaceful expression; judicial orders for data; rigorous digital evidence procedures; proportionate penalties; protection of good-faith security researchers where required. | Very high |
| Counter-terrorism | A new bill received its first reading on 9 September 2026. | Precise definition of terrorism; arrest, detention and trial safeguards; prevention of torture; assessment of evidence rules and penalties; victim protection. | Very high |
| Penal Code 111/1969 | In force, as amended. | Review provisions on defamation, insult and broadly worded concepts that may restrict expression, including Article 433 and related provisions, while protecting reputation through proportionate means. | High |
| Criminal Procedure Law 23/1971 | In force and amended. | Review safeguards concerning arrest, counsel, recording, notification, detention oversight and exclusion of evidence obtained under coercion. | High |
| Journalists Protection Law 21/2011 | In force. | Harmonize the definition of journalist, protection from violence and protection of information sources, without turning protection into a licensing restriction. | High |
| Personal data protection | Entry into force of comprehensive specialist federal legislation had not been verified by the research date. | Data subject rights; grounds for processing; sensitive data; supervisory authority; breaches; international transfers; government processing; automated decisions. | Very high |
| Prevention of torture | Scattered provisions and a previously discussed bill exist; comprehensive harmonization remains necessary. | Compatible definition; limitation periods and defences in accordance with constitutional policy; independent investigation; exclusion of evidence; reparation; visits and prevention. | Very high |
| Enforced disappearance | The need for a dedicated framework remains under follow-up within Iraq's international obligations. | Precise criminalization; registers; searches; protection of families; reparation; jurisdiction and cooperation. | High |
| High Commission for Human Rights Law 53/2008 | In force; the latest verified official update, dated 18 June 2026, identified completing the appointment of a new board of commissioners as a priority. | Strengthen independence, resources, representation, accessibility and official cooperation if an independent assessment indicates a need to amend the law. | Medium–high |
| Legal Aid Law 7/2024 | In force and published in Issue 4770 on 22 April 2024. | Implementation, funding and measurement of access, quality and geographical coverage rather than establishing a parallel programme. | Medium |
| Prevention of discrimination | This law should not be assumed to remove the need for a dedicated legislative initiative. | Definition and grounds of direct and indirect discrimination, harassment, positive measures and remedies, subject to rigorous constitutional review. | High |
Part Seven — Risk register and mitigation plans
| Risk | Likelihood | Effect | Early warning indicator | Mitigation |
|---|---|---|---|---|
| The law becomes a symbolic document | High | High | No reports, inventory or amendments after the first year | 180-day plan, indicators, annual reports and triennial review |
| Overlapping complaints and investigation powers | High | High | Executive offices established to receive and investigate crimes without legal authority | Articles 57–67 and explicit separation in accordance with Federal Court Decision 262/2022 |
| Use of proportionality to justify any restriction | Medium | High | General decisions without data or alternatives | Burden of justification, reasons, least restrictive means and review |
| Bureaucratic expansion | Medium | Medium | Requests for new posts and directorates | Compliance focal points drawn from existing staff and prohibition of new agencies |
| Claims that rights obstruct security | High | High | Attempts to remove the test from security legislation | The law permits legitimate security restrictions but makes them specific and justified |
| Federal/regional conflict | Medium | High | Objections alleging that powers have been exceeded | Article 3 and wording that respects competence and permits broader protection |
| Delays in specialist legislation | High | Medium | Persistent gaps concerning information, data and demonstrations | Interim cross-cutting rules + harmonization matrix with an 18-month timetable |
| Weak Commission governance or delayed appointments | High | High | Disruption of some monitoring or complaints activities | Keep public authorities' duties independent of appointment cycles and address Commission governance under its own law |
| Privacy risks arising from indicators | Medium | High | Publication of data that permit re-identification | Aggregation, minimization, data security and disclosure review |
| Opacity of artificial intelligence systems | Increasing | High | Denial of a right/benefit without explanation or human review | Inventory high-risk systems; impact assessment, explanation and human review |
| Uncontrolled digital costs | Medium | Medium–high | Procurement of platforms before needs are defined | 180-day cost assessment, CAPEX/OPEX, scenarios and outcome indicators |
Part Eight — Consistency with the rest of the political programme
| Related initiative | What this law covers | What remains outside this initiative |
|---|---|---|
| Combating discrimination and hate speech | This law establishes only the equality principle and controls on restrictions. | Details of offences, civil liability and specialist definitions remain within the separate initiative. |
| Protection of journalists | Article 16 establishes a cross-cutting minimum. | Amendments to the Journalists Protection Law and detailed policies belong in the specialist initiative. |
| Preventing arbitrary detention and police reform | Articles 11–13 establish the rights framework. | Restructuring, operations and detailed security training remain within the security initiatives. |
| Judicial and public prosecution reform | No new court or judicial restructuring is proposed here. | Institutional development and judicial powers belong in the relevant judicial initiatives. |
| Cybersecurity and digital transformation | Articles 23–26 govern rights, data and automated decisions. | Technical and security infrastructure and operational standards belong in the cybersecurity and digital transformation initiatives. |
| Health, education and social protection | Procedural safeguards, non-discrimination and review only. | Capacity, funding, projects and sectoral targets remain within their respective initiatives. |
| Legislative development | Articles 46–49 and 73–75 establish a human rights review methodology. | The legislative development initiative manages the state's broader legislative portfolio. |
| Combating corruption | Protects complaints, information and participation and prevents retaliation. | Corruption investigations, asset recovery and oversight structures remain governed by their laws and dedicated initiative. |
Points to record in the central coordination room
- Specialist programme initiatives must apply the same test: legal authority, legitimate aim, necessity, proportionality, least restrictive means, non-discrimination and respect for the essence of the right.
- Any new financial figure for this initiative replaces, rather than adds to, the earlier 30 million dollar estimate.
- If the status of legislation on information technology offences, counter-terrorism or access to information changes after 4 October 2026, a harmonization review must be opened before this document is reissued.
- No other programme initiative may propose a second national human rights commission or a parallel executive criminal investigation mechanism.
- The terms “human rights impact assessment”, “compatibility statement” and “compliance focal point” must be standardized across the legislative development and digital transformation initiatives to prevent multiple templates.
Part Nine — Technical annexes
Annex (A) — Human rights impact assessment template
| Field | Minimum requirement |
|---|---|
| 1. Description of the intervention | Name of the bill/policy/decision, responsible body, decision-maker, assessment date and version. |
| 2. Rights affected | Identify every directly or indirectly affected right, the groups affected and geographical or social differences. |
| 3. Legal authority | The legal provision permitting the intervention, limits of the delegated power and competent authority. |
| 4. Legitimate aim | The specific public objective and outcome to be protected, rather than general expressions such as “public interest” alone. |
| 5. Evidence and baseline | Data establishing the problem's existence and scale, their source, currency and quality limitations. |
| 6. Alternatives | No intervention; regulatory/administrative/technical alternatives and their ability to achieve the objective. |
| 7. Necessity | Why is a less intrusive measure insufficient? What is the specific risk? How is the measure connected to that risk? |
| 8. Proportionality | Expected benefits weighed against harm to the right; scope and duration of the restriction and number of people affected. |
| 9. Non-discrimination | Analysis of differential effects on groups and prevention or mitigation measures. |
| 10. Data and privacy | Data types, purpose of processing, retention period, security, sharing, access, correction and deletion where appropriate. |
| 11. Automation and artificial intelligence | Role of the algorithm, data, risks, bias, explanation, human review and appeal. |
| 12. Oversight and remedy | Complaint and appeal procedures, competent authority, deadlines and urgent measures. |
| 13. Financial and implementation impact | CAPEX/OPEX, staffing, systems, training, funding source and sustainability. |
| 14. Consultations | Who was consulted? What were the main objections? What changed, and why? |
| 15. Conclusion | Compatible/compatible subject to amendments/incompatible, specifying conditions and mitigating measures. |
Annex (B) — Human rights compatibility statement template for a government bill
- Name of the bill and proposing body.
- Rights and freedoms affected by the bill.
- Does the bill introduce a restriction? If so, what are its legal basis and aim, and why is it necessary and proportionate?
- Was a less restrictive means considered? Identify it and explain why it is insufficient.
- Are there differential effects on groups, governorates or persons with disabilities? How were they addressed?
- Does the bill require explicit amendments to other laws?
- Does it overlap with the powers of the judiciary, Commission or an independent body? What was the consultation outcome?
- Financial impact and funding source.
- Impact assessment result: compatible/requires amendments/involves a constitutional risk that must be resolved.
- Signature of the competent legal body and date of the latest review.
Annex (C) — Minimum content of the annual compliance report
| Section | Minimum content |
|---|---|
| General restrictions | Number and type of decisions/public policies restricting rights, their duration, legal basis and justification, excluding protected information. |
| Impact assessments | Number of assessments, areas covered, resulting amendments and cases where no assessment was conducted, with reasons. |
| Complaints | Numbers, trends, referral and handling times and outcomes, aggregated and anonymized. |
| Oversight recommendations | Number of Commission/oversight recommendations, percentage answered within the deadline, and those accepted, implemented or not feasible, with reasons. |
| Use of force | Aggregated data on serious cases, in accordance with laws and competences, and referrals for review. |
| Data and privacy | Serious incidents, corrective measures, high-risk systems and their assessments. |
| Training | Target groups, pass rates and behavioural/impact indicators, rather than participant numbers alone. |
| Internal harmonization | Instructions or circulars repealed or amended for lack of legal authority or disproportionality. |
| Plan for the following year | Top five risks, actions, responsible officer, deadline and outcome indicator. |
Annex (D) — Checklist for a decision restricting a right or freedom
- Is there a clear legal provision empowering the body to take this type of decision?
- Which specific right or freedom is affected?
- What is the specific legitimate aim?
- What facts or data establish the need for the decision?
- Which less restrictive alternatives were considered, and why were they insufficient?
- Is the decision as narrowly scoped as possible in terms of persons, place and time?
- Does the decision have a directly or indirectly discriminatory effect?
- Does it impair the essence of the right or effectively disable it?
- Is the decision temporary? If so, when will it be reviewed and expire?
- Have the reasons been recorded in a way that permits judicial or oversight review?
- Has the affected person been informed, where legally required, of the reasons and avenues of appeal?
- Have records and data needed for auditing been preserved with privacy safeguards?
Part Ten — References and sources
A. Iraqi legislation and decisions
- Constitution of the Republic of Iraq, 2005 — Iraqi Council of Representatives, officially published text. Official link
- High Commission for Human Rights Law No. (53) of 2008 — Iraqi Legal Database/Supreme Judicial Council.
- Rules of Procedure of the High Commission for Human Rights No. (1) of 2020 — Iraqi Legal Database.
- Legal Aid Law No. (7) of 2024 — Iraqi Gazette, Issue (4770), 22 April 2024; Ministry of Justice. Official link
- Public Prosecution Law No. (49) of 2017 — Iraqi Legal Database/Supreme Judicial Council.
- Criminal Procedure Law No. (23) of 1971, as amended — Iraqi Legal Database/Supreme Judicial Council.
- Penal Code No. (111) of 1969, as amended — Iraqi Legal Database/Supreme Judicial Council.
- Non-Governmental Organizations Law No. (12) of 2010 — Iraqi Legal Database.
- Protection of Witnesses, Experts, Informants and Victims Law No. (58) of 2017 — Iraqi Gazette/Ministry of Justice.
- Council of State Law No. (65) of 1979, as amended, particularly Amendment No. (71) of 2017 — Iraqi Gazette/Ministry of Justice.
- Federal Supreme Court Decision No. (262/Federal/2022) of 24 May 2023 — principles published on the Federal Supreme Court's official website; published in Iraqi Gazette Issue 4727.
B. Recent Iraqi government and parliamentary sources
- Ministry of Justice, “During his meeting with the Human Rights Department, the Minister of Justice directs preparation of the National Human Rights Plan for (2026–2030)”, 7 June 2026, moj.gov.iq/view.10299/. Official link
- Iraqi Council of Representatives, “First Deputy Speaker meets the Human Rights Commission adviser and affirms support for humanitarian issues and completion of the Board of Commissioners”, 18 June 2026. Official link
- Iraqi Council of Representatives, “Integrity Committee hosts the head of the Commission of Integrity and its directors-general...”, 9 September 2026, including discussion of the access-to-information law, iq.parliament.iq/blog/199495/. Official link
- Iraqi Council of Representatives, “Decisions and recommendations of Session (17), Wednesday 9 September 2026”, including the first reading of the counter-terrorism bill. Official link
- Iraqi Council of Representatives, “Decisions and recommendations of Session (20), Monday 21 September 2026”, including postponement of the second reading of the proposed law on information technology offences for further discussion and hearings. Official link
- Ministry of Justice, Iraqi Gazette Issue (4770), dated 22 April 2024, including Legal Aid Law No. (7) of 2024, moj.gov.iq/view.8075/.
- Ministry of Justice, Iraqi Gazette publication concerning Witness Protection Law No. (58) of 2017, moj.gov.iq/view.3194/. Official link
- Ministry of Justice, Iraqi Gazette Issue (4727), presentation of Federal Supreme Court Decision No. 262/Federal/2022, moj.gov.iq/view.7299/. Official link
C. International sources
- Human Rights Committee, Concluding observations on the sixth periodic report of Iraq, CCPR/C/IRQ/CO/6, 16 August 2022, United Nations Treaty Body Database. Official link
- Committee against Torture, Concluding observations on the second periodic report of Iraq, CAT/C/IRQ/CO/2, 15 June 2022. Official link
- Committee on Economic, Social and Cultural Rights, Concluding observations on the fifth periodic report of Iraq, E/C.12/IRQ/CO/5, 14 March 2024. Official link
- Human Rights Council, Report of the Working Group on the Universal Periodic Review — Iraq, A/HRC/59/14, 2025. Official link
- Human Rights Committee, General Comment No. 34 (2011) on freedoms of opinion and expression, CCPR/C/GC/34. Official link
- Human Rights Committee, General Comment No. 37 (2020) on the right of peaceful assembly, CCPR/C/GC/37. Official link
- United Nations, Common core document of the Republic of Iraq, HRI/CORE/IRQ/2025, used for guidance on the national reporting and follow-up framework. Official link
D. Comparative legal models
- United Kingdom, Human Rights Act 1998, section 6 (Acts of public authorities). Official legislation: legislation.gov.uk. Official link
- New Zealand Bill of Rights Act 1990, sections 5-7 (justified limitations, interpretation, reporting on inconsistent bills). Official legislation: legislation.govt.nz. Official link
- Constitution of the Republic of South Africa, 1996, section 36 (Limitation of rights). Official source: Department of Justice and Constitutional Development. Official link
E. Supplementary academic source
- Mohammed Ali Sahib Hassan, “Legal aid in light of Legal Aid Law No. 7 of 2024”, Journal of the College of Law and Political Science, 2025. Used as supplementary analysis and not given precedence over the official statutory text.
Part Eleven — Final document review register
| Review area | Status | Conclusion |
|---|---|---|
| Retrieval | Completed | The 2025 structure, decisions and previous financial estimate were retrieved; the complete old text could not be recovered verbatim. |
| Legal update | Completed through 4/10/2026 | The Constitution, institutional laws, Federal Court decision, announced national plan and status of sensitive parliamentary legislation. |
| Constitutional test | Completed | Separation of powers, Article 46, federal system, judicial competence and legislative route. |
| Institutional test | Completed | No parallel commission, court or investigative body; clear allocation of functions. |
| Financial test | Completed | Withdrawal of the 30 million dollar figure and adoption of a subsequent detailed cost model. |
| International human rights test | Completed | Guidance drawn from the observations of the civil and political rights, anti-torture, and economic and social rights committees, and the UPR. |
| Consistency with the programme | Completed | Separation of the framework law from the discrimination, press, security, justice and public-service sector initiatives. |
| Risks | Completed | Risk register, warning indicators and mitigation measures. |
| Indicators and implementation | Completed | 36-month plan, indicators and roles. |
| Review before formal referral | Required | Council of State scrutiny; opinions of the Supreme Judicial Council and Commission; update of legislative status and costs on the referral date. |
— End of document —