ARTICLE 19, the Committee to Protect Journalists,

English PEN, Freedom House, P! and PEN International

Joint "u#mission to the $N $ni%ersal Periodic Re%ie& o' Tur(e)
For consideration at the 21
st
session of the UN working group in January/February 2015
1! June *1!
1. ARTICLE 19, the Committee to Protect Journalists, English PEN, Freedom ouse, P!" and
PEN International #elcome the o$$ortunit% to contri&ute to the second c%cle o' the (ni)ersal
Periodic Re)ie# *(PR+ $rocess o' Tur,e%. This su&mission 'ocuses on Tur,e%-s com$liance
#ith its international human rights o&ligations #ith res$ect to 'reedom o' e.$ression.
E+ecuti%e "ummar)
!. In !/1/, the Tur,ish go)ernment acce$ted eight recommendations on the ste$s necessar% to
&ring its national legislation and $ractice in line #ith international 'reedom o' e.$ression
o&ligations. Regretta&l% the go)ernment has made inade0uate e''orts to im$lement these
recommendations, and the situation 'or 'reedom o' e.$ression has #orsened in Tur,e%.
1. 2uring the $eriod under re)ie#, Tur,e% ado$ted a series o' 3udicial re'orm $ac,ages that
aimed to harmonise domestic la#s #ith E( norms. o#e)er, the re'orms 'ell short o' 'ull%
im$lementing the recommendations Tur,e% acce$ted in the 'irst c%cle o' the (PR.
". This su&mission e.amines the 'ollo#ing 'i)e ,e% 'reedom o' e.$ression issues4
Legislati)e restrictions to 'reedom o' e.$ression5
The misuse o' the Anti6Terror La# *T78+ and organised crime $ro)isions #ithin the Tur,ish
Penal Code *TC8+5
Attac,s on 'reedom o' e.$ression and 'reedom o' $ress, including $olitical inter'erence in
media5
Ne# restrictions on 'reedom o' e.$ression, including the National Intelligence Agenc% La#
*No. 9:1!+
Increasing restrictions on 'reedom o' e.$ression online.
Legislati%e restrictions to 'reedom o' e+,ression
Re'orm Process
:. The Tur,ish go)ernment acce$ted si. general recommendations to align the Penal Code #ith
international standards during its 'irst (PR, &ut re3ected three.
9. The Third, Fourth and Fi'th Judicial Re'orm Pac,ages *$assed in Jul% !/1!, A$ril !/11, and
Fe&ruar% !/1", res$ecti)el%+ #ere directl% aimed at ameliorating the human rights and
'reedom o' e.$ression situation in Tur,e%.
;. The Third Judicial Re'orm Pac,age made head#a% &% sus$ending trials &rought $rior to 11
2ecem&er !/11 under legislation restricting e.$ression. <ther articles in the $ac,age $laced
incom$lete chec,s on e.cessi)e $re6trial detention. o#e)er, the &ul, o' #riters and
3ournalists in $rison #ere e.cluded 'rom this $artial amnest% &ecause the% #ere &eing tried
under the T78. Those #ho =&ene'itted- #ere e''ecti)el% granted sus$ended sentences4 the
charges #ould &e dro$$ed onl% i' the% did not commit =similar o''ences- #ithin the su&se0uent
three %ears. The threat o' old trials &eing reo$ened is a thinl% )eiled incenti)e 'or sel'6
censorshi$.
>. The Fourth Judicial Re'orm Pac,age constituted more o' a success. Commenda&le ste$s
#ere ta,en regarding )arious $ro$aganda la#s *TC8 Article !!/?> and T78 Articles 9?! and
;?!+. Pro$aganda no# #as onl% illegal i' it =legitimises or $raises, or incites others to resort to
an organisation-s coerci)e, )iolent or threatening $ractices.- A similar re0uirement #as
introduced 'or the la# on $raising o''ences or o''enders *TC8 Article !1:+. o#e)er, there #as
#ides$read dissatis'action #ith the re'orm-s 'ailure to $roduce su&stantial num&ers o'
releases.
9. The Fi'th Judicial Re'orm Pac,age #as the most su&stantial o' the re'orms, 'ocusing $rimaril%
on $ro&lems #ith the 3udicial $rocess. @$ecial Authorit% Courts and Prosecutors #ere
remo)ed, &ringing an end to an era o' anti6terror trials conducted &% a 3udiciar% gi)en
e.traordinar% $o#ers5 a 'i)e6%ear ca$ and more stringent e)idence re0uirements #ere $laced
on $re6trial detention, leading to scores o' releases in su&se0uent months5 and restrictions on
la#%ers- rights to access in)estigation dossiers #ere li'ted, ending the longstanding $ractice o'
,ee$ing indi)iduals in the dar, a&out the accusations the% 'aced.
1/. These $ositi)e mo)es, ho#e)er, did not come in res$onse to ongoing human rights concerns.
Rather the% #ere a means o' decla#ing an all6too6$o#er'ul 3udicial a$$aratus that had recentl%
turned its attention to alleged go)ernment corru$tion.
11. Ahile $ositi)e ste$s #ere ta,en as $art o' the re'orms, the re)isions #ere not com$rehensi)e
and 'ell short o' &ringing Tur,ish la#s in line #ith international human rights standards on
'reedom o' e.$ression.
1!. 2uring the $eriod !/1/6!/1", Tur,e% continued to a&use the T78 and TC8 to $rosecute
3ournalists, #riters, editors, $u&lishers, translators, ci)il?$olitical rights acti)ists, la#%ers,
elected o''icials and students 'or e.ercising their rights to 'reedom o' e.$ression. The num&er
o' con)ictions and instances o' $re6trial detention in )iolation o' 'reedom o' e.$ression
remained high, #ith at least 11"; )iolations re$orted in !/11 alone.
11. The T78 and TC8 still contain numerous $ro)isions that are &road and im$recise, allo#ing 'or
ar&itrar% en'orcement and the censoring o' critical, dissenting, and minorit% )ie#s on the
$retence o' $rotecting national securit%.
Im$risonment o' Journalists
1". Tur,e% 3ailed more 3ournalists than an% other countr% in the #orld in &oth !/1! and !/11. The
num&er o' 3ournalists &ehind &ars on 2ecem&er 1 !/11 #as "/, do#n 'rom the "9 3ailed on
2ecem&er 1 !/1!, according to research &% the Committee to Protect Journalists. In these
%ears, Tur,e% held more 3ournalists in custod%, in relation to their #or,, than Iran, China, or
Eritrea. 7ost 3ournalists #ere 3ailed on charges under Tur,e%-s &roadl% #orded anti6terror and
$enal code, and man% o' them had s$ent months, e)en %ears, in detention #ithout con)iction.
1:. As o' 1 June !/1", Tur,e% #as detaining a total o' 11 3ournalists5 since 2ecem&er !/11, !9
had &een released a#aiting trial. The !9 conditional releases #ere ena&led &% amendments in
the Fi'th Judicial Re'orm Pac,age that $ut a 'i)e6%ear ca$ on detentions #ithout a )erdict and
dismantled the @$ecial Authorit% Courts. Though commenda&le, the !9 releases are
conditional, #hich means that the 'reed 3ournalists could &e re6incarcerated i' their trials end in
con)ictions. The $ros$ect o' incarceration remains an incenti)e to sel'6censorshi$.

Criminal 2e'amation
19. The TC8 currentl% criminalises de'amation, #hich can result in 'ines or $rison terms. Article
1!: o' the Criminal Code $ro)ides that de'aming a $u&lic o''icial 'or the commission o' their
dut% carries a higher minimum sentence or 'ine than 'or de'amation o' ordinar% citiBens.
1;. 7an% criminal de'amation cases are initiated &% highl% $laced o''icials, including the Prime
7inister, 'ollo#ing statements the% see as de'amator%, including statements made in the $ress
or &roadcast media. There is no o''icial re$ort o' the num&er o' de'amation charges &rought &%
o''icials &ut it is estimated to &e in the hundreds.
1>. <n 1! No)em&er !/11, Anadolu (ni)ersit% student <sman Cari$ #as sentenced to 3ust o)er a
%ear in $rison 'or continuall% =insulting- Prime 7inister ErdoDan on Face&oo,. The in)estigation
#as o$ened $ursuant to an o''icial com$laint made &% ErdoDan himsel'.
Ci)il 2e'amation
19. The legal &asis 'or ci)il la# de'amation claims in Tur,ish la# is Article "1 *=intentional #rong'ul
harm-+ and Article "9 *=harm to $ersonal interests-+ o' the Code o' <&ligations.
!/. <n !: 2ecem&er !/1!, Prime 7inister ErdoDan #on com$ensation in a li&el suit against
Ahmet Altan, 'ormer editor6in6chie' o' the dail% ne#s$a$er, Taraf, 'or a column that called the
$rime minister =arrogant, unin'ormed, and uninterested.- Altan #as 'ound to ha)e )iolated
ErdoDan-s $ersonal rights and #as 'orced to $a% 1:,/// lira *a$$ro.. ;/// (@2+. <n 1> Jul%
!/11, Altan #as charged #ith de'amation against the Prime 7inister once again and gi)en an
11 months and !/ da%s $rison sentence, commuted to a ;/// lira *a$$ro.. 11// (@2+ 'ine.
The charges #ere &rought 'or con'ronting the Prime 7inister a&out his de'ence o' and re'usal
to a$ologise 'or an airstri,e #hich resulted in the death o' 1" ci)ilians in (ludere, Tur,e%.
!1. <n !/ Januar% !/1", Prime 7inister ErdoDan #on com$ensation in a li&el suit against author
Ehsan EliaFG, #ho had accused ErdoDan o' &eing a Hdictator, a corru$t leader, $ro)ocateur, liar
and arrogantI on his T#itter account on 1> June !/11, during the CeBi Par, $rotests. ErdoDan
#as a#arded !,/// lira *a$$ro.. 9// (@2+ in damages.
!!. The 3udgment o' the Euro$ean Court o' uman Rights in TuJal$ )s. Tur,e% *!/1!+ underlines
that using ci)il de'amation la#s to a''ord greater $rotection to $u&lic o''icials is a )iolation o'
Article 1/.
!1. The a$$lication o' ci)il or criminal de'amation charges to criticisms against $u&lic 'igures, and
im$osing higher $enalties 'or such criticisms, e.$licitl% discourages de&ate a&out o''icial
institutions. A ma3or 'la# o' the de'amation la# that allo#s 'or a&usi)e con)ictions is the
$rotection o' 'eelings, rather than re$utations, as sho#n through 3udgements $assed #ith
regards to =insults.-
Insulting the Tur,ish Re$u&lic and Religious 2e'amation
!". TC8 Article 1/1 criminalises =Insulting the Tur,ish nation, the @tate o' the Tur,ish Re$u&lic, the
Tur,ish Crand National Assem&l% and the Co)ernment o' the Re$u&lic o' Tur,e% or the 3udicial
organs o' the state-. Three recommendations during Tur,e%-s $re)ious (PR c%cle called on
the @tate to s$eci'icall% re)ise or a&olish Article 1/1 &ut #ere re3ected &% Tur,e%.
!:. This contro)ersial article is notorious 'or its a$$lication against numerous 3ournalists and
#riters, including the Tur,ish No&el laureate <rhan Pamu, *!//;+ and Tur,ish6Armenian
3ournalist rant 2in, *!//"+, #ho #as murdered in !//;. The num&er o' $eo$le $rosecuted
under Article 1/1 declined shar$l% 'ollo#ing a !//> amendment that introduced a ministerial
a$$ro)al re0uirement, &ut the article still has a chilling e''ect and critical e.$ression is still
targeted through other $ro)isions.
!9. Article !19 o' the TC8 criminalises =inciting the $o$ulation to enmit% or hatred-, #here =insulting
religious )alues- *!19?1+ is used as a $rete.t to sti'le 'ree s$eech, carr%ing a $rison term o' si.
months to three %ears, and continues to &e used against those #ith contrarian religious )ie#s.
The num&er o' trials &rought under this article rose in !/11.
!;. <n 1: A$ril !/11, $ianist FaBGl @a% #as gi)en a 1/6month sus$ended sentence 'or =insulting
religious )alues- in a series o' t#eets. The t#eets included a )erse 'rom an 11
th
6centur% $oem
&% <mar 8ha%%am #hich challenged the understanding o' =hea)en- in Islam.
!>. @imilarl%, on !: 7a% !/11, the Tur,ish6Armenian #riter and linguist @e)an NiJan%an #as
sentenced to o)er 11 months in $rison 'or alleged &las$hem% in a &log $ost de'ending the
contro)ersial 'ilm =The Innocence o' 7uslims- on grounds o' 'reedom o' e.$ression.
!9. <n ; August !/11, @edat 8a$anoDlu, o#ner o' the user6generated satirical dictionar% E,Ji
@KBlL,, and "/ contri&utors to the site #ere charged #ith religious de'amation, and
=committing a $u&lic order o''ence )ia $ress or &roadcast.- The charges relate to entries
satirising the Pro$het 7uhammed.
Anti-Terror Legislation
1/. Although the T78 and counter6terrorism $ro)isions in the TC8 ha)e &een re'ormed on a
num&er o' occasions, terms li,e =terrorism,- =organised crime- and =$ro$aganda- are so &roadl%
de'ined that the% still allo# 'or the $rosecution o' 3ournalists &ased merel% on the co)erage o'
terrorist acti)ities, or 'or inter)ie#ing Parti%a 8ar,erMn 8urdistan *P88+ leaders. @imilarl%,
students, la#%ers, and acti)ists are arrested under anti6terror la#s 'or the legitimate e.ercise
o' their rights to 'reedom o' e.$ression and 'reedom o' $eace'ul assem&l%.
11. Indi)iduals are )ulnera&le to $rosecution 'or ad)ocating non6)iolent $olitical ideas o' legitimate
$u&lic concern 3ust &ecause o' the association o' these ideas #ith certain armed organisations.
<''ences #ithin the TC8 are so &road that the% allo# $rosecution o' legitimate e.$ression
#ithout $ro)ing in)ol)ement in )iolent acts or their incitement. Thus, indi)iduals in)ol)ed in
non6)iolent s$eech and association are $rosecuted 'or =mem&ershi$ o' an armed organisation-
*TC8 11"+, =committing crimes on &ehal' o' a criminal organisation #ithout &eing a mem&er o'
that organisation- *TC8 !!/?9+, =ma,ing terrorist $ro$aganda- *TC8 !!/?> and T78 ;?!+ or
=$u&lishing statements o' a terrorist organisation- *T78 9?!+. 7oreo)er, Article : o' the T78
allo#s 'or the a$$lication o' aggra)ated sentences 'or $rosecutions under anti6terror legislation
in the TC8.
1!. The use o' mass indictments is common $ractice in Tur,e%. @ome o' the most signi'icant trials
including those against the militar% esta&lishment, the alleged ur&an #ing o' the P88, trials
against radical le't6#ing organisations, and the recent CeBi Par, trials, are carried out through
mass indictments that le)el charges against multi$le indi)iduals. 7oreo)er, the use o' anti6
terror legislation in $rosecutions results in longer $rison sentences and $re6trial detention
$eriods. To gi)e one e.am$le, 7uharrem Er&e%, a human rights de'ender charged #ith
mem&ershi$ o' an illegal organisation, #as released on 1! A$ril !/1" due to a =lac, o'
e)idence- a'ter 1,:;/ da%s o' $re6trial detention.
11. The go)ernment-s com$rehensi)e a&use o' anti6terror la#s to restrict dissent is mar,ed &% the
$rosecution o' hundreds o' 8urdish acti)ists, elected $oliticians, 3ournalists, editors, students
and la#%ers as mem&ers o' 8oma Ci)a,Mn 8urdistan *8C8+, the alleged ur&an #ing o' the
P88. The Peace and 2emocrac% Part% *N2P+ states that &et#een A$ril !//9 and No)em&er
!/11, ;;"> $eo$le #ere detained and 1>9: #ere arrested in relation to the 8C8 in)estigation.
1". <ther ma3or cases #here 3ournalists ha)e &een or are currentl% &eing $rosecuted as mem&ers
o' organised criminal organisations include the Ergene,on trials and cases #here the% ha)e
&een $rosecuted as mem&ers o' radical le'tist organisations such as The Re)olutionar%
Peo$leOs @al)ation Part%PFront *28P?C+ and The 7ar.ist Leninist Communist Part% *7L8P+.
The Ergene,on trials #ere initiated 'ollo#ing the disco)er% o' arms in an Istan&ul su&ur& in
June !//;. The initial !://6$age indictment acce$ted on !> Jul% !//> 'ocused on an alleged
cou$ $lot against the go)ernment. <n : August !/11, the e.$anded trial containing !1
indictments sentenced 1: $eo$le to li'e #ithout $arole and handed harsh sentences to nearl%
1// de'endants. Ahilst the trial #as su$$osed to hold to account dee$ state structures, 'air6
trial concerns and $rolonged $re6trial detentions throughout the legal $roceedings cast a
shado# o)er the $rocess.
1:. In 7arch !/11, in)estigati)e 3ournalists Ahmet QG, and Nedim Qener #ere among 1" $eo$le
arrested in connection #ith the criminal in)estigation against <daTR, a ne#s $ortal ,no#n 'or
its criticism o' go)ernment $olicies. Ahilst <daTR is accused o' &eing the =media arm- o' the
Ergene,on, &oth QG, and Qener #ere accused o' =,no#ingl% and #illingl% aiding and a&etting
an illegal organisation- *TC8 !!/?;+ and o' =mem&ershi$ o' an armed organisation- *TC8 11"+.
The% s$ent more than a %ear in $re6trial detention and #ere released on 1! 7arch !/1!. As o'
June !/1", the trial is ongoing.
19. <n !/ 2ecem&er !/11, $olice launched a series o' coordinated o$erations called =the 8C8
Press o$eration- in #hich "9 3ournalists #or,ing 'or 8urdish media outlets #ere arrested 'or
alleged mem&ershi$ o' 8C8. Ahile the de'endants ha)e graduall% &een released 'rom $re6trial
detention, the% are all charged under Article 11" o' the TC8 in con3unction #ith Article : o' the
Anti6terror La# *T78+, #hich $ro)ides 'or the aggra)ation o' sentences 'or terror o''ences.
1;. <n !1 2ecem&er !/11, the CeBi Protest indictment charged 19 $eo$le #ith terrorism related
crimes 'or organising the $eace'ul occu$ation o' CeBi Par, and related $rotests. The charges
included =mem&ershi$ o' an armed organisation- *TC8 11"+, and =committing crimes on &ehal'
o' a criminal organisation #ithout &eing a mem&er o' that organisation- *TC8 !!/?9+. The
indictment ma,es s#ee$ing accusations and associates indi)idual mem&ers o' la#'ul
organisations and guilds that allegedl% organised the $rotests #ith illegal armed grou$s,
$resenting them as the legal #ing o' grou$s such as the 28P?C and 7L8P.
Attac(s on 'reedom o' e+,ression and ,ress, including ,olitical inter'erence in media
1>. The go)ernment acce$ted t#o recommendations during Tur,e%-s 'irst (PR c%cle calling 'or the
$rotection o' 'reedom o' e.$ression and $ress 'reedom.
19. (nder the $eriod o' re)ie#, #riters and $u&lishers #ere su&3ect to $rosecution on grounds o'
de'amation, denigration, o&scenit%, se$aratism, terrorism and insulting religious )alues.
Authorities in)estigated or continued court cases against multi$le $u&lications and $u&lishers.
"/. Non63udicial means o' harassment are common, including $u&lic condemnation o' 3ournalists
&% $oliticians, and $olitical $ressure on ne#s outlets to change their editorial line.
Political inter'erence in media outlets
"1. Prime 7inister ErdoDan is ,no#n 'or $ersistentl% launching $ersonal attac,s against 3ournalists
'or $u&lishing columns that are critical o' the go)ernment, $rom$ting the media houses that
em$lo% them to 'ire them. In Fe&ruar% !/1!, 3ournalist Nura% 7ert #as 'ired 'rom Milliyet dail%
ne#s$a$er 'ollo#ing go)ernment $ressure. @imilarl%, in 7arch !/11, asan Cemal #as 'ired
a'ter &eing indirectl% targeted 'or maintaining that his $a$er #as right to $u&lish lea,ed
documents that shed light on P88 leader A&dullah Scalan-s thoughts on the $eace $rocess.
"!. There ha)e &een documented instances o' the go)ernment inter'ering directl% in the co)erage
o' $olitical e)ents &% $ri)ate media com$anies, including a lea,ed tele$hone con)ersation
&et#een the $rime minister and the controller o' a&erTLr, tele)ision, in #hich the $rime
minister ordered the controller to remo)e an o$$osition leader-s criticism o' ErdoDan 'rom the
tic,er at the &ottom o' the ne#s &roadcast. The Prime 7inister later 3usti'ied his inter)ention,
thus con'irming the con)ersation #as real.
Co)ernment (naccounta&ilit% to#ards 7edia <utlets
"1. The go)ernment has increasingl% consolidated $o#er o)er state institutions. 2ecree La# No.
9"9 stri$$ed a#a% the 'inancial and administrati)e autonom% o' inde$endent higher regulator%
&oards, handing them o)er to state ministries. 7edia regulator% &odies including the Radio
and Tele)ision @u$reme Council *RTT8+ and In'ormation Technologies and Communications
Authorit% *NT8+ 'unction under the direction o' the go)ernment and are not inde$endent. As a
result, the 3udgements o' such &oards are o'ten $oliticall% moti)ated and target indi)iduals or
grou$s that are critical o' the go)ernment.
"". Prime 7inister ErdoDan denounced an article $u&lished &% 3ournalist 7ehmet Naransu in Taraf
ne#s$a$er on !> No)em&er !/11, detailing a decision that had &een ta,en during a !//"
National @ecurit% Council *7C8+ meeting to ='inish o''- the CLlen religious mo)ement. A case
#as initiated u$on a com$laint 'rom the National Intelligence Agenc%, #ith the $rosecutor
demanding a :!6%ear sentence. The a$$lication is &eing considered &% an An,ara court.
7edia censorshi$ during and a'ter the CeBi Par, $rotests
":. 2uring the earl% da%s o' the CeBi $rotests in 7a% !/11, the largest media outlets #ere silent
and ignored the un'olding e)ents, $ro)o,ing sit6ins in 'ront o' media head0uarters. The media
&lac,out o&ser)ed in much o' Tur,e%-s $rimar% ne#s outlets highlights the #ider issue o'
media outlets &eing so scared o' attracting the go)ernment-s ire that the% engaged in sel'6
censorshi$.
"9. Pro6go)ernment station NTR $ro)ided a $lat'orm 'or the go)ernment to ma,e statements in
o$$osition to the $rotests #ithout accommodating the )ie#s o' the $rotesters, undermining the
$rinci$le o' im$artialit%. NTV Tarih, a histor% magaBine o#ned &% NTR, #as shut do#n
o)ernight a'ter $re$aring a s$ecial =CeBi Par,- edition.
";. Throughout the $rotests, 3ournalists #ho documented the e)ents, su$$orted the $rotestors or
de'ended their rights #ere arrested, &eaten, threatened and harassed, as the go)ernment
sought to silence and smear those s$ea,ing out against it. According to Nianet statistics, 1:1
3ournalists #ere attac,ed during the $rotests.
">. <)er >/ 3ournalists and commentators #riting criticall% o' the go)ernment in di''erent media
organisations #ere 'ired or 'orced to resign 'rom their 3o&s in the #a,e o' the CeBi Protests.
"9. <n !1 June !/11, An,ara 7a%or I&rahim 7elih Co,ce, descri&ed NNC Tur,ish re$orter @elin
Cirit as an =English agent- and launched a cam$aign against her on T#itter, resulting in a large
num&er o' threatening messages.
:/. <n 11 June !/11, Tur,e%-s &roadcast regulator RTT8 issued #arnings and im$osed a 'ine o'
11,/// Tur,ish lira *a$$ro.. :!:/ (@2+ each on (lusal TR, al, TR, E7 TR and Cem TR 'or
their li)e co)erage o' the CeBi Par, $rotests on grounds that it com$rised =content that
encouraged or tri)ialised )iolence, )iolated &roadcasting $rinci$les o' im$artialit% and 'ailed to
'ul'il o&ligations not to re$ort un)eri'ied ne#s-. In No)em&er !/11, $rosecutors re0uested a
sentence o' u$ to 11 %ears- im$risonment 'or (lusal TR director Naci EriJ on charges o'
=inciting the $u&lic to commit o''enses- through &roadcasts o' CeBi Par, $rotests.
:1. Police manhandled CNN corres$ondent I)an Aatson on the street in 'ront o' his o''ice during a
li)e &roadcast mar,ing the 'irst anni)ersar% o' the CeBi Par, demonstrations on 11 7a% !/1".
According to Aatson, $olice later a$ologised 'or their conduct and 'or ,neeing him in the &ac,
in #hat the% said #as a routine $ass$ort chec,. o#e)er, the Prime 7inister #as unre$entant
in his o#n $resentation o' the incident, re'erring to Aatson as =a 'lun,%- and =an agent- #ho
#as =caught red6handed- attem$ting to $ro)o,e an incident. This is $art o' an increasing
$attern o' intimidation o' 'oreign corres$ondents &ased in Tur,e%, ostensi&l% targeted 'or not
res$ecting go)ernment s$in on e)ents.
:!. 7ahir Ue%nalo), an ABeri national em$lo%ed &% the English6language Todays Zaman #as
'ormall% de$orted in Fe&ruar% !/1" 'or $osting a t#eet lin,ing to an article in his ne#s$a$er
#hich accused $olice chie's lo%al to the Prime 7inister o' $rotecting al6Vaeda a''iliates.
Ne& Restrictions on Freedom o' E+,ression
:1. In res$onse to a corru$tion scandal &eginning in 2ecem&er !/11, the go)ernment has sought
to e.ert greater control o)er the media, social media, and access to in'ormation. The result is a
num&er o' signi'icant legal changes a''ecting 'reedom o' e.$ression.
National Intelligence Agenc% La# *No. 9:1!+
:". Among the changes is the =La# Amending the La# on @tate Intelligence @er)ices and the
National Intelligence Agenc%- *No. 9:1!+, #hich entered into 'orce !9 A$ril !/1". The la#
amends an older la# *No. !91;+ to dramaticall% e.$and the $o#ers and reduce the
accounta&ilit% o' the National Intelligence Agenc% *7ET+. The changes negati)el% a''ect the
right to $ri)ac%, media 'reedom, 3ournalists- and citiBens- rights to 'ree e.$ression, and the
$u&lic-s right to access in'ormation.
::. The la# gi)es the 7ET #ide6ranging $o#ers to conduct sur)eillance and collect in'ormation.
(nder Article 1 o' the ne# la#, the 7ET has the authorit% to collect in'ormation, documents,
and data 'rom $u&lic institutions, 'inancial institutions and entities #ith or #ithout a legal
character. All institutions and entities must com$l% #ith 7ET demands 'or access to their data
and archi)es, and no other la# 'oreign or domestic can o)erride this o&ligation. Inter'ering #ith
the acti)ities o' the 7ET, 'or instance &% re'using a re0uest 'or data, is $unisha&le &% t#o to 'i)e
%ears in $rison. These $ro)isions )iolate the right to $ri)ac%. Necause the 7ET-s re0uests are
not su&3ect to 3udicial scrutin% and cannot &e contested, indi)iduals and organisations #hose
data is sought ha)e no means o' ensuring that the re0uests are $ro$ortionate and necessar%.
:9. Article ; esta&lishes se)ere $unishments 'or o&taining or $u&lishing in'ormation a&out the 7ET.
As the la# states, =an% unauthorised $erson recei)ing, o&taining, stealing, 'alsel% using,
'orging, or destro%ing in'ormation or documents related to 7ET 'unctions or acti)ities #ill &e
$unished &% 'our to ten %ears in $rison.- The article ma,es distri&ution o' in'ormation or
documents related to the 7ET =&% radio, tele)ision, social media, magaBine, &oo,, or an% other
'orm o' media- $unisha&le &% three to nine %ears in $rison. These $ro)isions are a clear threat
to 3ournalists as #ell as social media users #ho might o&tain and $u&lish in'ormation a&out
7ET acti)ities. The% erode the right to 'reedom o' e.$ression and the right to access
in'ormation.
:;. The la# also $laces the 7ET and its em$lo%ees outside o' normal structures o' accounta&ilit%.
Article > o' the la# sa%s that an% re0uests coming 'rom the 7ET #ill &e considered su$erior to
all other legal o&ligations, and that an% $erson com$l%ing #ith these re0uests #ill &e relie)ed
o' legal lia&ilit% 'or )iolations o' the la# created &% com$liance. The article e.$licitl% states that
this la# is su$erior to an% other la#s on this su&3ect. I' $rosecutors recei)e com$laints
regarding the acti)ities o' 7ET, Article 9 o&liges them to noti'% the director o' 7ET. The director
can then choose to &loc, the in)estigation, meaning 7ET is gi)en discretion o)er #hether its
o#n em$lo%ees can &e $rosecuted 'or crimes.
:>. The se$aration o' $o#ers is also #ea,ened through reduction in $arliamentar% o)ersight.
(nder Article 1!, the intelligence agenc% directorate and the institutions it controls #ill ma,e
annual re$orts directl% to the $rime minister-s o''ice. The P7-s o''ice #ill $re$are its o#n
re$ort, #hich #ill then &e shared #ith the Parliament-s @ecurit% and Intelligence Commission.
All in'ormation and documents contained in these re$orts #ill &e considered state secrets and
#ill there'ore not &e included in the re$orts o' the $arliamentar% commission.
:9. Tur,e% has a long histor% o' intelligence agenc% a&uses, including against 3ournalists. In
addition to the im$risonment o' 3ournalists on =anti6state- charges under the T78 as descri&ed
a&o)e, 3ournalists ha)e &een su&3ect to sur)eillance and legal harassment.
9/. In !/11, Ahmet Altan and Wasemin Xongar, the 'ormer editor6in6chie' and de$ut% editor o' Taraf
ne#s$a$er, three other columnists 'or the $a$er, and the then6chie' columnist 'or @tar
ne#s$a$er, 7ehmet Altan, disco)ered through court documents their mo&ile $hones had &een
ta$$ed &et#een !//>6!//9 at the re0uest o' 7ET. The a$$lication 'or the #ireta$s had &een
done #ith 'alse names in a deli&erate attem$t to mislead the courts. (nder the s$ecial $o#ers
it en3o%s, 7ET #as a&le to )eto the $rosecution o' a criminal case 'or illegal #ireta$$ing. Altan,
Xongar, Naransu and Esa%an #ere a&le to #in a case, 'or ci)il damages on the grounds that
their right to 'reedom o' in'ormation and $ersonal $ri)ac% had &een )iolated. That case is
currentl% &eing a$$ealed.
Increasing restrictions on 'reedom o' e+,ression online
91. Restricti)e Internet la#s introduced in Tur,e% ha)e led to an increase in &road measures to
censor online content. The go)ernment does not $u&lish 'ull statistics on &loc,ing, &ut
according to Engelli#e&.com, an inde$endent trac,ing site, 'rom !//; to 11 June !/1", an
estimated ">,:1; #e&sites ha)e &een &loc,ed to date since the introduction o' La# No. :9:1
on =Regulation o' Nroadcasts )ia Internet and Pre)ention o' Crimes Committed through @uch
Nroadcasts-. Thousands o' ne#s sites and social $lat'orms, such as WouTu&e, Rimeo,
2ail%motion and T#itter ha)e &een &loc,ed at di''erent stages in the $eriod under re)ie#.
According to Engelli#e&.com, the num&er o' sites o''iciall% &loc,ed &% the 2irectorate o'
Telecommunications *TIN+ in !/11 #as 1:,"/:, com$ared to ;,>!" in !/1!, and 9,:/9 in !/11.
9!. At the height o' the CeBi $ar, $rotests last summer, Prime 7inister ErdoDan called social
media =the #orst menace to societ%-5 in 7arch !/1", he )o#ed =not to lea)e this nation at the
merc% o' WouTu&e and Face&oo,.- The rhetoric &ecame realit% the same month #hen the
$o$ular micro&logging $lat'orm T#itter #as &loc,ed 3ust hours a'ter ErdoDan $romised to =#i$e
it out.- 2es$ite domestic and international outcr%, Tur,e% also &loc,ed the )ideo6sharing
$lat'orm WouTu&e in late 7arch !/1".
91. Access to &oth T#itter and WouTu&e #as restored a'ter Tur,e%-s @u$reme Court ruled that the
&loc,ings constituted illegal restrictions o' the $u&lic-s right to o&tain in'ormation4 T#itter
access #as restored on 1 A$ril, a'ter t#o #ee,s o' &loc,ing, #hile access to WouTu&e #as
restored on 1 June, a'ter 9; da%s o' &loc,ing. The &ans #ere a$$arentl% im$osed in an
attem$t to sus$end anti6go)ernment lea,s in the run6u$ to local elections on 1/ 7arch. T#itter
and WouTu&e had &een used as $lat'orms 'or lea,ing in'ormation im$licating the ruling A8
Part% in corru$tion. The &ans )alidate concerns o)er the state o' $ress 'reedom and 'reedom
o' in'ormation and cast 'urther dou&ts on #hether An,ara #ill ,ee$ to its international
o&ligations on the issue.
The amended La# :9:1
9". Those dou&ts are 'urther dee$ened &% the !/1" $assage o' amendments to La# :9:1,
commonl% ,no#n as the Internet la#. Li,e the s$ring !/1" social media &ans, the
amendments #ere $assed as the go)ernment sought to &eat &ac, online lea,s a&out high6
le)el corru$tion. The amendments #ere $assed &% the Tur,ish Parliament on Fe&ruar% :,
!/1", and signed into la# &% President A&dullah CLl on Fe&ruar% 1>. The% came into e''ect on
7arch 1, !/1". Although President CLl #as a&le to secure se)eral modest re'orms to the
amendments, the% negati)el% a''ected $ri)ac% and 'reedom o' s$eech.
9:. Articles 1// and 1/1 o' La# :9:1 allo# the go)ernment to &loc, (RLs. Ahile more targeted in
sco$e than #e&site &loc,ing, (RL &loc,ing is much less trans$arent. <ne e''ect o' this is that
indi)idual social media accounts *or e)en indi)idual $osts+ can &e &loc,ed #hile the #e&sites
carr%ing those indi)idual accounts remain accessi&le. The damage to other users, there'ore,
&ecomes less o&)ious, allo#ing the go)ernment to engage in co)ert censorshi$ #ith im$unit%.
This is es$eciall% true i' the &loc,ing is done &% a means other than court order, in #hich case
it is unclear #hat $u&lic record #ould e.ist that censorshi$ had occurred. 7oreo)er, (RL
&loc,ing re0uires dee$er sur)eillance than #e&site &loc,ing to &e achie)ed technicall%, so the
&ill could $ro)ide a &ac,door to more ro&ust sur)eillance in'rastructure and $ractices.
99. Articles 9: and 9> o' La# :9:1 mandate retention o' net#or, data 'or a $eriod o' one to t#o
%ears, to &e determined &% su&se0uent regulation. Com&ined #ith the ne# 7ET la#,
mandator% retention creates am$le o$$ortunit% 'or )iolations o' internet users- right to $ri)ac%.
9;. The amendments to :9:1 re0uire that all I@Ps o$erating in Tur,e% 3oin a =(nion o' Access
Pro)iders-, and $ro)ide that an% I@P re'using to 3oin cannot o$erate in Tur,e%. In addition to
com$elling $artici$ation in the (nion, the la# also states that the (nion #ill not &e a&le to dra't
its o#n &%la#s. The $ro)ision thus greatl% consolidates the go)ernment-s $o#er o)er I@Ps.
9>. In signing the amendments, President CLl su$$orted 'urther modest amendments to it in order
to address some o' the most &latantl% la#less $ro)isions. These changes im$osed a
re0uirement 'or court a$$ro)al 'or accessing retained data *although 7ET #ill still ha)e access
#ithout a court order+, as #ell as a'ter6the6'act 3udicial re)ie# o' orders to &loc, Internet sites.
The% also esta&lished a s$ecialiBed court to decide #hether or not to &loc, content. The
$resident-s amendments6to6the6amendments do not remo)e the danger to 'ree e.$ression
$osed &% ha)ing this draconian la# on the &oo,s.
99. In 2ecem&er !/1!, the ECtR ruled that La# No. :9:1 #as incom$ati&le #ith the right to
'reedom o' e.$ression *Ahmet Yildirim ). Turkey !/1! no.1111?1/+. The ECtR held the la#
lac,ed su''icient clarit%, 'ailed to s$eci'% the circumstances in #hich content could &e &loc,ed,
and made no $ro)ision 'or those a''ected &% a &an to res$ond $rior to the &loc,ing o' content.
The !/1" amendments to la# :9:1 ha)e e.acer&ated these $ro&lems. La# :9:1 remains in
)iolation o' the Euro$ean Con)ention on uman Rights, #hich is legall% &inding u$on Tur,e%.
;/. Those #ho use the Internet to e.$ress critical o$inions or call 'or $rotest ha)e &ecome
$articular targets o' re$ressi)e actions &% the Tur,ish go)ernment. Throughout the CeBi
$rotests, the go)ernment monitored social media and issued arrest #arrants 'or those #ho
organised or su$$orted the $rotests )ia their T#itter and Face&oo, accounts.
;1. <n June " !/11, 1> T#itter users in the $ro)ince o' IBmir #ere detained 'or =inciting the $u&lic
to diso&e% the la#-. The t#eets in 0uestion indicated areas #here $olice #ere inter)ening
against $rotesters and sa'e areas #here medical hel$ could &e sought. A'ter ; months o'
in)estigations, !9 o' the indi)iduals arrested during the $rotests #ere charged, and 'ace
$otential $rison sentences o' u$ to 1 %ears. The trial is ongoing.
Recommendations
;!. The co6authors call u$on the go)ernment o' Tur,e% to signi'icantl% im$ro)e the o)erall
conditions 'or 'reedom o' e.$ression. In $articular, the go)ernment o' Tur,e% should4
Anti6terror legislation
Cease the a&use o' anti6terror legislation and the $enal code to $rosecute 3ournalists, &loggers,
acti)ists and other ci)il societ% actors, release those detained 'rom $rison, and dro$ $ending
charges5
Com$rehensi)el% re'orm counter6terrorism legislation, including Article 9?! and ;?! o' the T78
and Articles !!/?9, !!/?> and 11" o' the TC8, to narro# de'initions o' =terrorism-, =organised
crime-, and =$ro$aganda-, and to ensure that the genuine $ur$ose and demonstra&le e''ect o'
an% restriction on 'reedom o' e.$ression is necessar% and $ro$ortionate to $rotect a legitimate
national securit% interest5
2e'amation, insult to the state and &las$hem%
2ecriminalise de'amation &% re$ealing Article 1!: o' the Penal Code5
Re'orm the Code o' <&ligations on ci)il de'amation to ensure ade0uate de'ences 'or e.$ression
that is true or is in the $u&lic interest, and to guard against the a&use o' la# suits to silence
criticism o' $u&lic o''icials5
Re$eal Article 1/1 o' the Penal Code on =Insulting the Tur,ish nation-5
Re'orm Article !19?1 o' the Penal Code criminalising =inciting the $o$ulation to enmit% and
hatred- to &ring it in line #ith Article !/*!+ o' the ICCPR and the Ra&at Plan o' Action, re$ealing
$ro)isions that allo# $rosecution 'or =insulting religious )alues- or 'or =&las$hem%-5
Freedom o' $ress
Remo)e an% restrictions or regulations that might $lace the media under $olitical in'luence or
com$romise the )ital role o' the media as $u&lic #atchdog, in $articular o)ersight o' RTT8 and
NT85
Ta,e a$$ro$riate action, consistent #ith rele)ant human rights standards, to $romote media
di)ersit% and $re)ent undue media dominance or concentration5
Promote trans$arenc% o' media o#nershi$ ma,ing $u&lic the identit% o' their o#ners, and ho# it
might re'lect their $ersuasions or &iases5
Cuarantee the sa'et% o' 3ournalists and media #or,ers. Legislati)e and $olic% measures must &e
ado$ted to $re)ent all attac,s against 3ournalists and eradicate im$unit% in e$isodes o' )iolence
and intimidation5
Pre6trial detention
Release all $ersons in $re6trial detention or 'acing $rison sentences 'or e.ercising their right to
'reedom o' e.$ression5
@ur)eillance and Freedom o' E.$ression
Re$eal National Intelligence Agenc% La# *No. 9:1!+, and ensure ade0uate 3udicial and $olitical
o)ersight 'or the securit% ser)ices5
Restore 3udicial, $rosecutorial, and $arliamentar% o)ersight o' the National Intelligence Agenc%
*7ET+ in order to ensure that 7ET actions a''ecting 'reedom o' e.$ression are $ro$ortionate and
necessar% in a democratic societ%5
Freedom o' e.$ression online
Amend La# :9:1 to $rotect 'reedom o' e.$ression online, and ensure that an% &loc,ing o'
#e&sites, IP addresses, $orts, net#or, $rotocols or t%$es o' use *e.g. social net#or,ing+ is
3usti'ied in accordance #ith international standards.