Committee on Economic, Social and Cultural Rights Commends Qatar for its High Corruption Perception Index Ranking, Asks About Discrimination of Religious Minorities and Migrant Workers’ Rights
The Committee on Economic, Social and Cultural Rights today concluded its review of the initial report of Qatar. Committee Experts welcomed Qatar’s high ranking in Transparency International’s Corruption Perceptions Index, and asked questions about reports of discrimination of religious minorities, including the Baha’i religious community, and migrant workers’ rights to change jobs and access healthcare and education.
Seree Nonthasoot, Committee Expert and country rapporteur, said that Qatar was one of the best-scoring countries in the Middle East and North Africa region in Transparency International’s Corruption Perceptions Index. However, the State party lacked independent anticorruption mechanisms to hold senior officials and members of the ruling family publicly accountable for the allocation of State resources. The Committee considered such mechanisms a safeguard that would make the State party’s anti-corruption framework more robust and credible.
One Committee Expert expressed grave concerns about reports of discrimination of religious minorities, notably against persons belonging to the Baha’i religious community, which was not recognised and denied registration in Qatar. Members of the Baha’i minority had been subjected to administrative deportation and blacklisting, resulting in loss of employment and familial separation. What concrete steps would be taken to reform the law that required registration of non-Muslim religious groups, as well as to address violations of such groups’ economic, social and cultural rights?
Another Expert asked why, despite labour reform, the kafala system of sponsored employment remained in practice. He also asked for information on procedures and rules for labour mobility. Low-income workers experienced serious barriers to accessing healthcare, one Expert noted. What measures did the State take to ensure that stateless individuals and migrants who were undocumented were granted access to essential healthcare?
Hend Bint Abdalrahman Al-Muftah, Permanent Representative of the State of Qatar to the United Nations office in Geneva, and head of delegation, introducing the report, said that since Qatar's accession to the Covenant, important steps were taken at the legislative and institutional level to ensure the realisation of the rights contained therein.
The delegation said no members of Qatari society were above the law. Laws were enacted to address terrorism and money laundering, such as the law on terrorism financing and the human trafficking acts. National strategies for combating corruption, money laundering and the proliferation of weapons for mass destruction were in place.
The State did not consider religion when determining whether to provide residency or not, the delegation said. No person of Baha’i faith or other faiths were deported unless they unlawfully stayed in Qatar. Anyone could be deported in the case of illegal stays.
Ms. Abdalrahman Al-Muftah said that Qatar undertook fundamental reforms in the legislative and institutional system related to the promotion and protection of expatriate workers' rights. Key among them were the abolition of the Kafala sponsorship system and the exit visa system for all workers, elimination of legal restrictions on workers' ability to change jobs, the adoption of a non-discriminatory minimum wage and an enhanced wage protection system.
The delegation added that many remedies were provided for persons whose rights had been violated. The powers of the employer were now restricted. All residents of Qatar were provided the right to education and healthcare, regardless of their nationality or residential status.
In concluding remarks, Mr. Nonthasoot said the Committee had noted Qatar’s advancements and observed several opportunities for improvement. The State had ratified seven out of nine international human rights conventions. The Committee called on it to ratify the Optional Protocol to the Covenant and conventions on statelessness, and to introduce more non-discriminatory legal provisions. Further, it encouraged the State to continue to strengthen supports for vulnerable groups, including children, migrant workers, women and drug addicts.
In her concluding remarks, Ms. Abdalrahman Al-Muftah said that the State party would take into account the Committee’s concluding observations and recommendations when formulating national policies and strategies. The State would pay particular attention to capacity building of governmental and non-governmental stakeholders in the areas of human rights contained in the Covenant. It was exchanging good practices and conducting continuous dialogue to enhance positive aspects and address its shortcomings, taking into account the cultural and religious specificities of its society.
The delegation of Qatar was comprised of representatives from the Permanent Mission of Qatar to the United Nations Office at Geneva, the Ministry of Foreign Affairs, the Ministry of Social Development and Family, Ministry of Interior, Supreme Judiciary Council and other institutions.
All the documents relating to the Committee’s work, including reports submitted by States parties, can be found on the session’s webpage. Webcasts of the meetings of the session can be found here, and meetings summaries can be found here.
The Committee will next meet in public at 3 p.m. on Wednesday, 4 October, to begin its consideration of the fourth periodic report of Armenia (E/C.12/ARM/4).
Report
The Committee has before it the initial report of Qatar (E/C.12/QAT/1).
Presentation of Report
HEND BINT ABDALRAHMAN AL-MUFTAH, Permanent Representative of the State of Qatar to the United Nations Office at Geneva, and head of delegation, said Qatar’s initial report was the result of collective consultative work with a dedicated Government committee formed in 2018. Cooperation with the treaty bodies was of great importance to Qatar. It was engaging positively with their general comments and recommendations. The State was also been keen to present candidates to join the treaty bodies.
The State had adopted a national vision for development, “Qatar Vision 2030”, aiming to transform it into an advanced country capable of achieving sustainable development and ensuring the continuation of a decent standard of living for its people, generation after generation. The Vision provided a general framework for developing national sector-wide strategies and plans for their implementation. It also promoted human, social, economic and environmental development. The Vision’s measures aimed to provide quality education, adequate employment opportunities, comprehensive health care, housing, social security, an adequate standard of living and cultural diversification, and combat corruption. Qatar also worked to enhance citizens and residents’ access to information and communications technology, especially for groups that needed special care, such as people with disabilities, the elderly and expatriate workers.
The educational empowerment of women was one of the Qatari Government's priorities. 67.5 per cent of Qatar's higher education graduates were women. 37 per cent of women aged 25 to 29 and almost 49 per cent of women aged 30 to 34 were participating in the workforce. Qatari women played a prominent role in decision-making as they competed for the highest administrative and scientific positions. Qatari women occupied judicial posts and had been appointed as senior public prosecutors. Women in Qatar participated in all sectors, including defence and aviation. Qatar ranked among the first three Arab States and ranked 42nd globally in the 2021/2022 Human Development Report published by the United Nations Development Programme. Qatar had moved progressively towards a more sustainable economy and achieving the Sustainable Development Goals, in particular in the field of the environment. A reduction in energy and water waste had been observed in all stadiums and modern constructions in the country.
Following Qatar's accession to the Covenant, the Covenant acquired the force of law under the Constitution and became an integral part of national legislation. In recent years, Qatar had integrated its provisions into the national legal system in conformity with Islamic Sharia principles. A committee was established to study the harmonisation of national legislation with the Covenant. Since Qatar's accession to the Covenant, important steps were taken at the legislative and institutional level to ensure the realisation of the rights contained therein. Qatar continued to establish human rights institutions at the governmental level and to encourage their establishment at the non-governmental level. Qatar also undertook fundamental reforms in the legislative and institutional system related to the promotion and protection of expatriate workers' rights. Key among them were the abolition of the Kafala sponsorship system and the exit visa system for all workers, elimination of legal restrictions on workers' ability to change jobs, the adoption of a non-discriminatory minimum wage and an enhanced wage protection system. The inspection, safety and occupational health system had been improved. Likewise, labour dispute resolution committees and joint committees with workers' and employers' representatives were established along with several measures to ensure that workers had access to effective remedies. To enhance migrant workers' protection from all possible abuses and violations during the recruitment process and to provide integrated services for all recruitment procedures, the State had opened visa centres in six sending countries, and implemented several human rights awareness and employment integration programmes.
The State attached great importance to the promotion of international cooperation with all States and international and regional organizations to achieve world peace, contribute to development efforts and assist States, especially developing and least developed countries, in achieving the 2030 Sustainable Development Goals. Qatar's overall development assistance focused on vital sectors such as health, education and water. Qatar voluntarily provided humanitarian and development assistance, even during economic crises and health pandemics. The “Doha Declaration” adopted at the conclusion of the Fifth United Nations Conference on the Least Developed Countries reflected the State's humanitarian and moral commitment to development assistance of these countries. The opening of the United Nations House in Doha last March, which included a number of United Nations offices and agencies, would enable the State to effectively and efficiently carry out its mandate and implement its programmes and activities, particularly those related to the region.
Questions by Committee Experts
SEREE NONTHASOOT, Committee Expert and country rapporteur, said there were no cases in which the Covenant had been invoked before the national courts. Was the Covenant applicable in the national courts? How would the national courts reconcile differences between the Covenant and Sharia law? What was the timeline for ratifying the Optional Protocol? The State Party had made an explicit reservation to articles three and eight of the Covenant. This contravened with the object and purpose of the Covenant. When would it consider withdrawing the reservation to render the Covenant fully effective?
The Committee welcomed that the National Human Rights Commission was granted “A” status by the Global Alliance of National Human Rights Institutions. Could information on the law or framework that ensured the independence of the executives and staff of the Commission? How effective was the Commission in providing remedies for victims of human rights violations? How timely was it in issuing recommendations and what percentage of these had the Government implemented? Decree 21 of 2020 required prior approval from the Ministry of Social Development for establishing civil society organizations. Such approval may not be granted if establishment was found to be against the public interest. The Committee viewed the participation of civil society organizations as a human right. Did the State party have a plan to outline the requirement more clearly or abolish it all together? What was the situation of human rights defenders, who reportedly faced travel restrictions and arbitrary detention?
The State party had pledged to reduce greenhouse gas emissions by 25 per cent by 2030 as part of its Nationally Determined Contribution to the Paris Agreement. What policies and laws had been implemented to achieve this?
Qatar was one of the best-scoring countries in the Middle East and North Africa region in Transparency International’s Corruption Perceptions Index. However, the State party lacked independent anticorruption mechanisms to hold senior officials and members of the ruling family publicly accountable for the allocation of State resources. The Committee considered such mechanisms a safeguard that would make the State party’s anti-corruption framework more robust and credible.
The State did not have a national action plan on business and human rights. The Workers’ Support and Insurance Fund, financed through the State budget, held employers and business owners financially accountable when they failed to provide workers with their wages and other benefits. How was the Fund managed and what were the procedures in the case of non-compliance? How had the Qatar Investment Authority integrated the “respect, protect, remedy” framework under the United Nations Guiding Principle on Business and Human Rights? Did human rights due diligence guide its investment policies?
There was no comprehensive anti-discrimination legal framework that covered all grounds of discrimination prohibited under the Covenant, including discrimination on the grounds of national or social origin. The Committee was gravely concerned by reports of discrimination of religious minorities, notably against persons belonging to the Baha’i religious community, which was not recognised and denied registration in Qatar. What concrete steps would be taken to reform or revise the law that required registration of non-Muslim religious groups with the Ministry of Foreign Affairs to obtain a presence in the country, as well as to address violations of such groups’ economic, social and cultural rights? Unregistered religious groups engaging in worship activities was considered illegal and their members had been deported. Members of the Baha’i minority had been subjected to administrative deportation and blacklisting, resulted in loss of employment and familial separation.
The Expert encouraged the State party to become party to the 1954 Convention Relating to the Status of Stateless Persons and the 1961 Convention on the Reduction of Statelessness. Stateless members of the Ghufran clan were reportedly deprived of their rights to work, access health care, education, marriage and starting a family, owning property, and freedom of movement. The Committee was alarmed by reports of structural discrimination against non-nationals. They asked on the existence of a social structure akin to a quasi-caste system based on national origin.
The State party’s reservation to the Covenant was very problematic; it conflicted with Articles 34 and 35 of the Constitution. In Qatar, women faced discrimination both in law and in fact, in relation to marriage, divorce, inheritance, child custody and freedom of movement. Women in Qatar needed to obtain permission from their male guardians to marry, study abroad on Government scholarships, work in Government jobs and travel abroad until a certain age. Because of discriminatory nationality law, Qatari women could not confer nationality to their children like their male counterparts, a situation that could result in stateless children. A clear response was needed to withdraw the reservation and systematically revise the legal framework in line with the Covenant.
Could the delegation provide more information on the legal framework that reportedly criminalised lesbian, gay, bisexual, transgender and intersex people?
Responses by the Delegation
The delegation said Qatar was not considering acceding to the Optional Protocol, as the State’s practices and solutions were sufficient. Furthermore, regarding the inheritance act, a specific committee was established to cooperate with the National Human Rights Committee. Anyone could plead to the court in cases of human rights violations.
The State did not consider religion when determining whether to provide residency or not. No person of Baha’i faith or other faiths were deported unless they unlawfully stayed in Qatar. Anyone could be deported in the case of illegal stays. The State was not against lesbian, gay, bisexual, transgender and intersex persons. It sought to interact and coexist with everyone. Civil society organizations’ independence was granted by a relevant law. Such organizations were also allowed to enter the education sector.
No members of Qatari society were above the law. Laws were enacted to address terrorism and money laundering, such as the law on terrorism financing and the human trafficking acts. The legislator also amended the legislation on non-profit organisations to put an end to illicit funding in some domains. In 2022, the legal definition of “public officer” was harmonised with the United Nations Convention against Corruption. Together with the United Nations, the State had established a global conference on judges in 2021, aiming to reinforce the judiciary globally and eradicate corruption by providing centres in that regard. Further, national strategies for combating corruption, money laundering and the proliferation of weapons for mass destruction were in place. In 2022, Qatar was hailed for progress in those domains in a regional report. A 2022 law reflected the State’s commitments to protect against money laundering, human trafficking and terrorism.
Qatar’s Vision 2030 aimed to ensure development with respect for human rights. It was established in accordance with all stakeholders, including civil society organizations. Qatar was a large donator to those causes. It also voluntarily invested 0.7 per cent of its gross domestic product in official development assistance. Partners were chosen based on rigorous evaluation processes.
The national climate change plan was hoping to reduce greenhouse gas emissions by 25 per cent by 2030. The State had developed more than 300 actions to achieve its climate change goals. Accurate data was needed for the purpose of decision making. Eco-friendly materials, eco-construction and other standards were applied during the 2022 World Cup, aiming to reduce energy and water waste by 40 per cent.
All public and private businesses were bound by Qatari laws that compelled them to respect human right standards and migrant workers’ rights. Complaints about workplace discrimination could be lodged with different litigating bodies. 31,000 complaints were raised in previous years, the majority of which had been settled. A wage protection system was enacted to promote the payment of wages through banks. 1.8 million workers and more than 70,000 companies had been included in this system, which was still developing. In 2023, 1,150 facilities were shut down and over 2,000 referred to courts for non-compliance.
The Qatar Investment Authority was an international agency working in most countries of the world. It adapted national laws to international standards. A committee to oversee implementation of the national human rights plan would be established as soon as possible.
Qatar had adapted its laws, including its Criminal Code and labour law, to address racial and other forms of discrimination, and had established a department for administrative disputes. There was no discrimination against women in national legislation. Women accounted for 85 per cent of the labour market. Four woman ministers and ten deputy ministers had been appointed. Also, Qatari women assumed high positions in a number of bodies. 91 per cent of women now worked in the Government.
Questions by Committee Experts
A Committee Expert asked if the State’s Committee for Children, Women and Elderly Persons established in 2019 had achieved any results? Did the State make derogations from Sharia law regarding its legislation of inheritance? Did migrants have access to health, education and other services?
Another Committee Expert asked why the State had not ratified the International Convention for the Protection of All Persons from Enforced Disappearance and the International Convention on the Protection of the Rights of All Migrant Workers and Members of Their Families. Even if the State was fully confident in the effectiveness of its remedies, it should not refrain from acceding to the Covenant’s Optional Protocol and these treaties.
One Committee Expert said stateless persons residing in Qatar reportedly lacked access to public services. Did the State intend to take measures to give access to them? Did they intend to sign the statelessness convention? Further, did Qatar have a permanent mechanism for drawing up reports for the treaty bodies? Was there a mechanism to follow-up on recommendations by the treaty bodies and other institutions?
Another Committee Experts highlighted the very high percentage of women in the labour market. Was maternity and paternity leave available for workers? What measures were in place to support workers caring for children, the elderly or persons with disabilities?
SEREE NONTHASOOT, Committee Expert and country rapporteur, encouraged Qatar to ratify the Optional Protocol. Were same sex relations still criminalised in Qatar? A monitoring mechanism was needed to address corruption. Could the delegation elaborate on its measures and actions to address climate change? Who shut down the 1,000 businesses mentioned by the delegation and for what reasons?
Responses by the Delegation
The delegation said the Committee for Children, Women and Elderly Persons was functioning. It analysed the laws relevant for these groups. The Committee cooperated with civil society organizations and participated in the law drafting process. There were six unemployment centres promoting workers’ rights. The Constitution granted all residents of Qatar access to public services with no discrimination.
Regarding inheritance law, the State abided by Sharia law, which prescribed that daughters were given 50 per cent of property allocated to sons.
The State intended to accede to the Convention on Enforced Disappearances. They needed to consider the compatibility of their norms with that Convention. Subsequently, other international treaties would be considered. The State party was also considering establishing a single national body in charge of preparing the reports for United Nations entities.
The State applied jus sanguinis and prioritised assessment of citizenship applications from children with Qatari mothers. Several measures were taken to provide temporary residence to stateless persons. Stateless persons were prioritised in the provision of permanent residency. Citizenship could also be obtained through naturalisation and other means. The Office of the United Nations High Commissioner for Human Rights’ guidelines in that regard were respected.
Qatar had no law prohibiting women from travelling. However, the competent ministry and the judiciary could prohibit women and men from travelling if it was in the public’s interest. There was no law criminalising the right to be a part of the lesbian, gay, bisexual, transexual and intersex community.
Questions by Committee Experts
NADIR ADILOV, Committee Expert and member of the country taskforce, asked why, despite the labour reform, the kafala system of sponsored employment remained in practice. He also asked for information on procedures and rules for labour mobility.
What legal developments aimed to improve the labour rights of migrants and eradicate labour exploitation, including wage withholding, contract manipulation, poor living conditions and long working hours? What measures was the State party taking to protect the human rights of undocumented migrants? He asked for information on mechanisms to facilitate migrant workers' access to grievance procedures without fear of intimidation by their employers. What training programmes were available for labour inspectors? What measures were in place to protect the rights of domestic workers?
Why were there restrictions on non-Qatari workers’ trade union rights and on the right to strike? What were the existing regulations governing the right to collective bargaining? When would Qatar sign International Labour Organization Convention 87 on Freedom of Association and Protection of the Right to Organize, and Convention 98 on the Right to Organize and Collective Bargaining.
The Expert also asked for information on measures aimed at ensuring pension income for foreign workers.
Responses by the Delegation
The delegation said the kafala sponsorship system had been abolished in stages starting from 2015. Many remedies were provided for persons whose rights had been violated. The State was reforming its workplace standards in partnership with the International Labour Organization. It restructured the Ministry of Labour in 2020. All workers in all sectors could now move freely between employers and leave the country. 35 per cent of migrant workers used this opportunity to move from one working place to another. The average period for processing an employment application had fallen to only six days, down from over 20 days some years ago. The powers of the employer were restricted.
The State had set up a national committee to address forced labour, drafted a related national plan and established shelters for victims of human trafficking. 57 inspection campaigns were launched between 2020 and 2023. Violators of these rights were convicted, fined and imprisoned. A non-discriminatory minimum wage was established in 2021, the first of its kind in West Asia, and a national committee on minimal wage was also established. Workers had the right to file complaints with the relevant Labour Ministry department in cases of non-payment. The Fund for Protection of Labour, established in 2018, served to compensate workers in cases where employers were insolvent. The Fund had been used by 70,000 workers. The State had created a body in charge of labour inspections that had detected 4,744 violations, including of safety standards, at workplaces. More than 100 locations were shut down as a consequence of inspections, which had detected dangerous conditions such as extreme heat. Injuries leading to death had been reduced from 2018 onwards.
In 2017, an umbrella system was established to protect domestic workers, who were represented in unions and free to elect their representatives, irrespective of whether they were Qatari or not. About 500 union representatives represented more than 30,000 workers. If no amicable solution could be found regarding a worker’s complaint, the issue was taken to a dedicated dispute settlement body. This mechanism resolved around 80 per cent of complaints, according to 2021 information. The Supreme Court of the Judiciary had trained magistrates and judges competent to resolve employment disputes. Legal counsel was also given to any person who could not afford it, which benefited migrant workers.
The State did not outlaw any peaceful assembly. A law from 2004 allowed for the authorisation of peaceful demonstrations under certain conditions. They needed to take place solely for the purpose stated in the application.
Social security laws guaranteed older persons and persons with a disability a monthly wage, received through a person that cared for them. They were entitled to health benefits, education, housing and other benefits. 25 per cent of persons entitled to health benefits were persons with disabilities.
Questions by Committee Experts
A Committee Expert asked about the responses from employer associations regarding the dismantling of the kafala system.
Another Committee Expert asked if the State had a reconciliation mechanism to address wage disputes and other breaches of labour codes? There were reports that 6,000 migrant workers had died while working on constructing facilities for the 2022 football World Cup. Had the State investigated these allegations? Was there an official figure for the casualties? Did the State take measures to prevent workers’ deaths and provide reparations to the families of the deceased?
Another Committee Expert asked about the number of workplace inspectors, the areas they covered and their power to provide remedies. Did the workers’ support fund cover migrant workers or solely domestic workers?
LYDIA RAVENBERG, Committee Expert and member of the country taskforce, said that unmarried women who reported sexual violence could be prosecuted for extramarital sex, with penalties of up to seven years’ imprisonment and floggings if they were Muslim. Did the delegation have information about the prosecution, trial and subsequent sentences of those suspected of committing these crimes, disaggregated by age, gender and religion? Domestic violence and marital rape were not specifically criminalised. How did the early warnings mechanisms for persons at risk of domestic violence work in practice and were these mechanisms reviewed and revised? Could information on beneficiaries of these mechanisms, disaggregated by region and migration status, be provided? There were reports of underreporting of cases of domestic and sexual violence, owing to cultural and social stigma and fear of reprisals against victims and their families. Were police, investigating officers, prosecutors and the judiciary trained in handling cases of domestic violence? Were there comprehensive segregated data on gender-based violence against women and girls, including on the number of complaints, prosecutions, convictions and sanctions imposed on perpetrators, as well as on the remedies provided to victims? Did the State have awareness-raising campaigns on all forms of violence against women?
Were any measures taken to address overcrowding and migrants’ unhealthy housing conditions in the industrial area of Doha? What measures were being taken to protect and fulfil the right to adequate housing of these migrant workers? What was the state of the labour inspection system in Doha? Were there enough labour inspectors?
Low-income workers experienced serious barriers to accessing healthcare. Private employers sometimes failed to provide health cards to workers. Why were there such long waiting times for medical services? What measures did the State take to eliminate these problems? Did the State work to raise healthcare personnel’s awareness of human rights? Also, migrants in prison did not have access to essential healthcare. What measures did the State take to ensure that stateless individuals and migrants who were undocumented were granted access to essential healthcare? What were the barriers preventing access for migrant workers in prison to healthcare services, and the measures to contain the spread of COVID-19 specifically tailored to the situation of these migrant workers? How many beds were provided per prisoner? Did prisoners have access to basic personal hygiene products such as soap, water, hand sanitizer and face masks? Was there a Government body in Qatar that investigated and addressed instances of overcrowding and unsanitary prison facilities to ensure protection of rights to mental and physical health?
Responses by the Delegation
The delegation said the State party gathered data on the health of workers together with the Ministry of Labour. The workplace death toll was down to 66 this year. In connection to the World Cup, the alleged figures were incorrect. For ten years, the World Cup was prepared in line with acceptable working conditions. Some deaths occurred due to traffic accidents or older age. The State endeavoured to resolve this issue. Investigations were carried out against employers. The competent Ministry monitored this and provided compensation in line with human rights norms.
Qatar’s competent authorities dealt with human rights reports. They assessed and replied formally to these reports. Regarding non-governmental organization reports, there was a recommendation to accede to the Convention on Enforced Disappearances that was being considered.
The Ministries of Interior, Labour and Health cooperated with origin countries when issuing visas to migrant workers. Fingerprints were taken, medical examinations carried out and contracts were checked. The visa centre raised workers’ awareness of what awaited them in Qatar, and ensured that their stay was legal, safe and monitored. The Labour Ministry, in cooperation with the International Labour Organization, had launched awareness raising campaigns for these workers so that they became acquainted with workers’ associations. Staff councils provided occupational health and safety trainings and advice. They facilitated the access of workers to freedom of expression and other aspects. This was a signal of progressive approach adopted since the cessation of the Kafala system. Employers no longer paid fees when one of their former workers left their jobs; this was now covered by the State.
A dispute settlement system was in place. Mediators received complaints and played a reconciliatory role. Complaints needed to be filed in accordance with the law. Within seven days, a report was published and in most cases the conflict was resolved. 80 per cent of complaints were resolved amicably between 2020 and 2023.
Inspectors assessed whether labour law provisions were enforced and whether private businesses provided decent working conditions for all. Inspections could take place without prior announcement. Inspectors could also visit workers’ accommodation, and provide recommendations to employers and employees regarding labour provisions. They could also initiate court proceedings against any party in breach of provisions. Inspectors followed the national plan for inspection of working places, which aimed to promote safe and decent conditions for all workers. There were 252 inspectors and 72,000 visits had been executed.
Law 3/2009 addressed the rights of detainees. Qatar had also established a permanent committee on penitentiary institutions to put in place coordinating policies. The administration of correctional institutions adhered to human rights guidelines.
Legislation punished the crimes of murder, abuse, verbal and physical violence. It did not contain a reference to domestic violence, but it did mention “crimes against decency”, which covered domestic violence. Violence and verbal harassment against women and children were criminalised by the Penal Code. Several hospitals and rehabilitation centres provided support to victims. Prosecutors who dealt with these cases could be either male or female. Victimised children were taken care of in specialised circumstances until reports were examined.
The Supreme Judicial Council played a role in fighting domestic crimes. It established a court that addressed domestic violence in 2021. It sought to achieve amicable reconciliation within two weeks after receiving a case. The risks and dangers of domestic violence were understood by the authorities. The Islamic Sharia was the source of legislation in Qatar. It could not contravene other provisions. Extramarital relationships were not permissible. Islamic provisions included stringent restrictions on flogging punishments; these were rarely implemented.
The Ministry for Family and Social Development was implementing awareness raising measures addressing all aspects of domestic violence. Family counselling centres and social protection centres had been established. In 2021, these centres received more than 10,000 phone calls and provided social counselling and sheltering in response. There had been 309 reports of physical violence and hundreds of cases of psychological violence. Around 350 children were protected each year, including children subjected to sexual and physical abuse. 50 officials from all relevant sectors were trained on scientific methodologies and forensic interviews with victimised children. An annual conference on negligence and victimisation of children was held. In 2020, the State hosted a global conference on the topic that was attended by hundreds of people. Many awareness raising campaigns on abuse of children had been initiated. 20 per cent of calls came from children under the age of 18, and similar amount of calls from third parties. A website was launched to warn about the threats of sexual and other forms of abuse of children. It included information on avenues for reporting these cases.
The State had issued several decisions and programmes to improve conditions for labourers. In 2020, the Government introduced the minimum wage law, which promoted the right to decent housing. Also, the labour law was amended in that regard. Violations of labourers’ rights were now considered to be aggravating circumstances, and the judiciary had increased its efficiency in assessing complaints of such violations. Over the past few years, the State had created housing complexes which included social and medical facilities. There was no discrimination in domain of housing. If there were violations, landlords were held liable. The State forced accommodation crammed with too many people to be vacated.
Healthcare was accessible to all registered workers according to the law. Health centres provided health services also to people without proper documents. Patients were communicated with through digital platforms. Hospitals treated patients in various languages, and more psychological assistance was offered during the pandemic. In 2023, new measures were introduced to reinforce access to health services and reduce waiting times. A modern electronic appointment system was set up. The new measures also gave medics a greater role in determining appointments with patients. Various workers had access to first aid services provided by expert firms. Companies with more than 100 workers, needed to employ a nurse, and companies with over 500 workers needed both a doctor and a nurse. All migrant workers had full rights to healthcare and medical treatment in Qatar.
The freedom of religion was valid for all. The State had set up various institutions to support inter-faith dialogue. Various religions had full freedom in line with legislation. Qatar aimed to implement the values of fraternity and peace.
Questions by Committee Experts
ASRAF ALLY CAUNHYE, Committee Expert and member of the country taskforce, said the State’s measures and programmes promoting the right to education, cultural rights and enjoyment of the benefits of scientific progress were welcome. Effective implementation of these was crucial. In 2018, public schools had 122,000 students, while private schools had 196,000. Despite the creation of several charity schools, the vast majority of non-Qatari low-income families did not have access to free education. Mr. Caunhye called for data on the percentage of students attending public and private schools, differentiated by gender, nationality, age and type of school. What measures were taken to improve dropout rates for children with disabilities and children of other nationalities? What had been the impact of actions and measures aiming to improve the quality of education, address the needs of students whose first language was not Arabic, improve the quality of teaching, and provide school materials? What was done to incorporate a human right aspect in all schools’ curricula? There was still very low degree of female students enrolled in science and maths courses. There were also reports that foreign teachers earned much less than Qatari teachers. How would this be rectified? Another issue of concern was the high degree of illiteracy among migrant workers. How did the State provide vocational and other training for these groups? Also, there were reports that pregnant girls and women were prevented from attending schools. Was the State addressing this issue? What percentage of students entered the labour market while following a syllabus for persons with disabilities?
What steps were taken to safeguard the identity and cultural specificities of the non-Qataris? How was the digital divide overcome by introducing digital solutions and raising digital literacy, especially for low-income families? Although citizens were equal in rights and duties, there were restrictions in the Penal Code on religious practices, public worship for non-Muslims, and the use of religious symbols. What were the measures taken to ensure effective protection of religious practices, including for religious minorities?
Responses by the Delegation
The delegation said there were no restrictions on the right to worship, which was guaranteed through legislation.
The right to education was one of the most important rights guaranteed by the Constitution. Compulsory education was provided. The State was ranked 25th in the United Nations Development Programme’s Education Index, and first in the Arab world regarding education coverage. The State promoted general equality and enrolment in education. Resident students had joined schools in greater numbers over the past two years. Two specialised schools catered for children who left or could not attend schools, and the State planned to establish more of these schools. Anyone in Qatar with a residence permit was entitled to education and health services. Schools were flexible and endeavoured to facilitate integration. Married or pregnant women could go to evening classes. The Government placed emphasis on promoting tolerance and peaceful coexistence through education. In 2019, the human rights guidebook, a contract for mainstreaming human rights, was disseminated across Qatar.
The Government promoted equal education opportunities for men and women. Girls were encouraged to study science; a higher percentage of girls than boys now studied science subjects. 48 per cent of girls now pursued scientific specialisations. Specialised technical schools for girls also existed. Syllabuses were tailored to persons with disabilities. Around 70 fully inclusive schools supported the education of 39 per cent of these students. New schools were needed for persons with mental disabilities. The number of children with disabilities enrolled in education institutions was rising by three per cent each year.
The National Human Rights Commission had not recorded any complaints of discrimination based on ethnicity or religion. In 2023, the Government issued a guide on cultural diversity, listing digital channels providing support and alternatives for those who preferred not to deal with digital platforms. The State provided for protection of cultural rights. A new support fund was established for sports, social and charitable activities. Qatar had ratified international instruments promoting cultural rights and cultural expression.
Qatar’s National Human Rights Commission provided mechanisms to monitor and investigate complaints of racism. The General Prosecutor also dealt with such complaints. Qatar had been ranked first in the Arab world for three consecutive years in terms of personal security. Progress had been made in many areas including education and cultural diversity.
The protection of digital rights was a priority. The State attached great importance to a free and safe cyberspace devoid of discrimination. All State authorities and agencies were consolidating efforts to promote digital rights. For instance, the law on digital rights protected the personal data of individuals, preventing cybercrimes and increasing data protection. Qatar was committed to digital inclusion. It had launched a programme entitled “Better Communication” that sought to close the digital gap for migrant workers, providing digital equipment to 1.5 million migrant workers. These technologies benefited the employability of women and persons with disabilities. Prevention, protection and empowerment were the main pillars of the safe space platform established by Qatar to increase digital safety. This platform was used by tens of thousands of users.
The Government had adopted several resolutions on human rights awareness raising, and the United Nations centre in Doha was also involved in awareness raising training in the domain of human rights. The law prohibiting publication of anything that promoted religious sectarianism prevented the depiction of any race or groups in a racist way.
Questions by Committee Experts
LYDIA RAVENBERG, Committee Expert and member of the country taskforce, said the male guardianship system disabled women from independently receiving health examinations. Pregnant women and those that were raped could not receive examinations if they were not married. What measures were taken to address these aspects to help these groups?
A Committee Expert asked whether housing and medicines for migrant workers were financed by the State or employers. Regarding cultural rights, a draft law from 2020 regulating access to electronic publications. There were certain restrictions on access. The law needed to be liberalised to guarantee more cultural expression for Qatari residents.
ASRAF ALLY CAUNHYE, Committee Expert and member of the country taskforce, said migrants constituted about 85 per cent of the population in Qatar. Large numbers of non-Qatari children, especially undocumented migrants, reportedly did not have access to schooling. What was the State doing to comply with its Covenant obligations and provide at minimum free primary education for all? What was done to improve the quality of teachers through training, the provision of textbooks and the quality of education of non-Arabic children? Why were pregnant women excluded from participating fully and inclusively in education?
SEREE NONTHASOOT, Committee Expert and country rapporteur, asked whether labour inspectors had the authority to inspect the workplaces of domestic workers. In 2015, Qatar enacted a commendable law and a permanent committee on drug addictions. What was the effectiveness of this system in promoting harm reduction? Was treatment of addiction voluntary or enforced through prisons?
Responses by the Delegation
HEND BINT ABDALRAHMAN AL-MUFTAH, Permanent Representative of the State of Qatar to the United Nations Office at Geneva, and head of delegation, said that all residents of Qatar were provided the right to education and healthcare. Healthcare facilities were giving medical treatment to all persons regardless of their nationality or residential status. The State was constantly improving education curricula, and was providing training on human rights to teachers. There were over 120 nationalities in Qatar that participated in all levels of education. This was a tradition in Qatar and not a new development.
The delegation said that Qatari law required that male guardians gave permission to pregnant women to receive medical treatment. This was not needed in urgent cases. Women had rights to access the system independently in the context of sexual and reproductive rights. However, sexual and reproductive measures that involved medical interventions required the permission of the husband.
Husbands’ guardianship of children did not damage women. This derived from Sharia law. However, if a husband could not provide for his children, the mother could ask the court to intervene regarding their guardianship. Women were provided with health cards for the children.
Legislation established drug addiction treatment centres. To access them, a request had to be submitted by an addict or their guardian. This was the case since 1987. These centres used modern treatments. The treatments varied in accordance with the state of addiction.
The Government provided workers’ housing. Employers needed to provide at least a minimum wage, even to unskilled workers. Private sector companies built workers’ housing in accordance with relevant occupational health and safety standards. Occasionally, the State provided land or other incentives. Companies that provided less than minimum wage on the grounds of having provided accommodation were taken to court. Employers were obliged to provide comprehensive social care for all their workers.
There were annual training plans and programmes for teachers that were consistent with capacity building standards. Qatar was among the first countries to introduce measures to improve the skillsets of its teachers. Teaching in public schools occurred in Arabic. Non-Qataris were allowed to attend such schools, and even constituted 51 per cent of all enrolled pupils. The Government was considering amending the publication act, which was enacted in the 1970s.
Labour inspectors did not inspect domestic workers’ workplaces. However, some form of inspection did exist. Sexual and reproductive health information was given to pregnant women before and after delivery. Breast cancer screenings were carried out regularly.
Closing Statements
SEREE NONTHASOOT, Committee Expert and country rapporteur, said that it should be noted that Qatari citizens were a demographic minority. The Committee had noted Qatar’s advancements and observed several opportunities for improvement. The State had ratified seven out of nine international human rights conventions. The Committee called on it to ratify the Optional Protocol to the Covenant and conventions on statelessness, and to introduce more non-discriminatory legal provisions. Further, it encouraged the State to continue to strengthen supports for vulnerable groups, including children, migrant workers, women and drug addicts.
HEND BINT ABDALRAHMAN AL-MUFTAH, Permanent Representative of the State of Qatar to the United Nations office in Geneva and head of delegation, said that Qataris were a minority because Qatar was a welcoming country. She said that the State party would take into account the Committee’s concluding observations and recommendations when formulating national policies and strategies in areas concerned with the implementation of the State’s obligations under the Covenant. The State would pay particular attention to capacity building of governmental and non-governmental stakeholders in the areas of human rights contained in the Covenant, and would also work to increase awareness through specialised cultural and academic programmes. The State had a strategic vision to make human rights an integral part of its national policy. It was exchanging good practices and conducting continuous dialogue to enhance positive aspects and address its shortcomings, taking into account the cultural and religious specificities of its society. Qatar urged the Committee's Experts to reflect their diverse knowledge in their various efforts, including those concerned with drafting general comments that guided States parties in understanding and interpreting the provisions of the Covenant.
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CESCR23.016E