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FM AMEMBASSY MANAMA
TO RUEHC/SECSTATE WASHDC IMMEDIATE 4865
INFO RUEHZM/GULF COOPERATION COUNCIL COLLECTIVE PRIORITY
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RHMFISS/HQ USCENTCOM MACDILL AFB FL PRIORITY

C O N F I D E N T I A L SECTION 01 OF 02 MANAMA 000973 
 
SIPDIS 
 
SIPDIS 
 
E.O. 12958: DECL: 05/17/2016 
TAGS: PGOV PREL PHUM KHUM BA HUMRIT POL REFORM
SUBJECT: COUNCIL OF REPRESENTATIVES PASSES CONTROVERSIAL 
PUBLIC GATHERING LAW 
 
REF: A. MANAMA 184 
     ¶B. 2005 MANAMA 1910 
 
Classified By: A/DCM Steve Bondy for reasons 1.4 (b) and (d). 
 
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Summary 
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¶1.  (C) Bahrain's Council of Representatives (COR) passed 
public assembly legislation May 16, following two years of 
back-and-forth between the COR and government.  These 
amendments to the 1973 law on public gatherings ban 
demonstrations near hospitals, airports, shopping malls, and 
other areas specified by the Ministry of Interior.  The COR 
removed the word "processions" from the legislation in 
deference to Shi'a concern that the GOB might have used the 
legislation to restrict religious observances and processions 
during Ramadan and Ashura.  Although the current system of 
notification, vice obtaining permission, before a 
demonstration proceeds is maintained, the legislation gives 
the head of Public Security increased authority to disapprove 
events at least 48 hours in advance.  A group of political 
societies released a joint press statement expressing their 
concern about diminishing freedom in the country and the lack 
of consultation on the legislation between the parliament and 
civil and political society groups.  On May 22 the Shura 
Council Foreign Affairs, Defense, and National Security 
Committee declared that it would consult such groups before 
sending the legislation to the full Shura Council for 
discussion.  End Summary. 
 
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Long Process, Quick Approval 
---------------------------- 
 
¶2.  (C) Following an unexpectedly short but lively debate, 
members of the COR voted May 16 to pass new amendments to 
1973 legislation on public gatherings and demonstrations. 
This vote culminated nearly two years of public debate on the 
need for new legislation regulating public assembly. 
According to Shi'a Islamic bloc MP Mohamed Al Alshaikh, the 
government first introduced an entirely new draft law 
governing assembly late in the second (2003-2004) legislative 
term.  Before the COR was to begin full parliamentary 
discussion on the law in the third legislative term 
(2004-2005), the government retracted the draft due to 
indications there would be very little COR support for the 
legislation.  In January 2006, the government reintroduced 
legislation in the form of amendments to the 1973 law rather 
than a separate piece of new legislation.  Al Alshaikh 
reported that the recent amendments contained much of the 
controversial content of the retracted legislation.  However, 
he said, the COR Foreign Affairs, Defense, and National 
Security Committee, of which he is a member, debated the new 
amendments for only two hours and discussion in the full COR 
lasted no more than three hours.  Al Alshaikh expressed his 
displeasure at the way these amendments have been pushed 
through without adequate consideration. 
 
¶3.  (U) The legislation will next be considered by the Shura 
(Consultative) Council, then passed to the Cabinet for final 
approval.  The new legislation bans demonstrations in areas 
near hospitals, airports, shopping malls, or areas designated 
as security zones by the Ministry of Interior.  Although 
initially included on the list of restricted areas, 
demonstrations on main roads or near diplomatic missions and 
international organizations are permitted.  The word 
"processions" (mawakib) was removed from the legislation, 
over the objection of Al Asala (Salafi) bloc members, 
softening concern from the Shi'a community that the law might 
permit the government to interfere in annual Shi'a religious 
processions during Ramadan and Ashura. 
 
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Complaints of Restricting Public Freedom 
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¶4.  (U) A minimum of three organizers, all residents of the 
area in which the demonstration is to take place, must notify 
the head of Public Security three days prior to the event, 
specifying the time, place and reasons for the event, but 
there is no requirement to wait for permission before the 
event can proceed.  However, the legislation grants the head 
of Public Security the authority to stop any demonstration 
with a notification to the organizers no later than two days 
prior to the event.  Demonstration planners have the right to 
appeal any such decision within 15 days.  Seven political 
societies issued a joint press release May 19 objecting to 
the authority the legislation gives to government officials 
 
MANAMA 00000973  002 OF 002 
 
 
to control demonstrations and urging all civil and political 
societies to speak out against the legislation.  The 
societies accused the COR of giving undue consideration to 
security issues at the expense of public freedom and 
expressed their regret that the COR did not consult them 
about their concerns. 
 
¶5.  (C) Al Meethaq Political Society Chairman Ahmed Juma told 
EmbOff May 20 that there is a need for legislation that 
regulates and organizes public gatherings, but it should not 
restrict freedom of expression.  He said that some articles 
in the new legislation restrict this freedom and are 
therefore unconstitutional.  He hoped the Shura Council would 
meet with political societies that have reservations about 
the amendments and listen to their suggestions for changes. 
Head of Al Wifaq foreign affairs committee Sayed Saeed Al 
Majid told EmbOff that he is not surprised at the COR's lack 
of action to protect freedoms based on its general lack of 
commitment to reform.  On the other hand, "Members of the 
Shura have shown that they are more experienced and realistic 
than members in the COR, so they will amend some of the 
restrictions in the law." 
 
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Shura Members Agree to Consult 
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¶6.  (U) The Shura Council Foreign Affairs, Defense, and 
National Security Committee announced publicly May 22 that 
the committee would not send the draft legislation to the 
full Shura for discussion before the committee sits down with 
representatives of political societies to hear their concerns 
about the public gathering law.  Chairman of the committee 
Shaikh Khalid Bin Khalifa Al Khalifa said that in addition to 
meeting with representatives from civil society groups and 
political societies, members of the committee would research 
similar legislation in other countries.  "We will not rush 
(this legislation) but will review all issues thoroughly to 
ensure that the law will not harm the public," Shaikh Khalid 
said. 
 
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Comment 
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¶7.  (C) The amending of assembly legislation has been a topic 
of discussion for three legislative sessions, picking up 
particular momentum in the wake of the conviction and 
sentencing of 19 individuals over the disturbance and damage 
at the Bahrain international airport in late December 2005 
(reftels).  There was reportedly not enough evidence to get a 
conviction on public property damage, so the fallback charges 
were for illegal gathering.  Following that occurrence, it 
was widely expected that firm restrictions on demonstrations 
near certain locations would be imminent.  Public debate at 
that time focused on specific distances from public venues 
within which demonstrations would be banned, but the new 
legislation (possibly intentionally) leaves this point 
unclear.  The COR's quick treatment of the amendments has 
critics steamed, given that public, political debate on the 
right to assembly has been contentious.  However, the Shura's 
expressed intention to pursue input from political societies 
and civil society groups has been well received. 
 
 
 
Visit Embassy Manama's Classified Website: 
http://www.state.sgov.gov/p/nea/manama/ 
 
MONROE