atlas of torture

Mon|tor|ng and revent|ng 1orture Wor|dw|de

-
8u||d|ng Upon the Work of the UN Spec|a|
kapporteur

I|na| ro[ect keport - Mo|dova

December 2013



A pro[ecL flnanced by Lhe Luropean unlon (LluP8/2010/222-226)






WlLh Lhe co-flnanclng supporL of norway and Lhe rlnclpallLy of LlechLensLeln
1


1ab|e of contents
1. Introduct|on ............................................................................................................................ 3
2. S|tuat|on of torture and |||-treatment |n Mo|dova - gaps and needs |dent|f|ed |n the
assessment phase 2011 |n re|at|on to the |mp|ementat|on of recommendat|ons made by the UN
Spec|a| kapporteur on 1orture ........................................................................................................ 4
2.1. SlLuaLlon of LorLure and lll-LreaLmenL .............................................................................................. 4
2.2. lmpunlLy and lack of accounLablllLy ................................................................................................. 6
2.2.1. 1he legal framework for Lhe flghL agalnsL lmpunlLy ................................................................. 6
2.2.2. 1he lnsLlLuLlonal framework for Lhe flghL agalnsL lmpunlLy ..................................................... 8
2.2.3. lnLernal accounLablllLy mechanlsm and complalnLs managemenL ........................................... 9
2.3. Legal Safeguards ............................................................................................................................ 11
2.3.1. LengLh of pollce cusLody and pre-Lrlal deLenLlon ................................................................... 11
2.3.2. Access Lo a lawyer ................................................................................................................... 11
2.3.3. Medlcal personnel employed ln places of deLenLlon ............................................................. 12
2.4. revenLlve MonlLorlng ................................................................................................................... 12
3. Strateg|es, act|v|t|es, and resu|ts of the pro[ect |mp|ementat|on September 2011 - December
2013 ............................................................................................................................................. 1S
3.1. SLraLeglc cholce of flelds of engagemenL and developmenL of lnLervenLlon plan ......................... 13
3.2. Addresslng Lhe accounLablllLy gap by sLrengLhenlng Lhe legal, procedural and lnsLlLuLlonal
framework agalnsL lmpunlLy ................................................................................................................. 17
3.2.1. SLrengLhenlng Lhe legal framework agalnsL lmpunlLy by lmprovlng Lhe crlmlnallsaLlon of
LorLure and lll-LreaLmenL ln Lhe Moldovan Crlmlnal Code ............................................................... 17
3.2.2. romoLlng furLher procedural and lnsLlLuLlonal reform of Lhe anLl-LorLure prosecuLors ....... 20
3.2.3. romoLlng an lmproved relaLlonshlp beLween crlmlnal and dlsclpllnary accounLablllLy Lo
effecLlvely address Lhe accounLablllLy gap ....................................................................................... 23
3.2.4. Lnhanclng Lhe capaclLles of defence lawyers ln relaLlon Lo Lhelr role ln Lhe prevenLlon of
LorLure and Lhe flghL agalnsL lmpunlLy ............................................................................................. 27
3.3. LvaluaLlon of esLlmaLed lmpacL of pro[ecL acLlvlLles on Lhe flghL agalnsL lmpunlLy and enhanced
accounLablllLy ........................................................................................................................................ 29
3.4. ConLrlbuLlng Lo Lhe reform of Lhe naLlonal revenLlve Mechanlsm .............................................. 31
4. Io||ow-up to the pro[ect and further measures advanc|ng the prevent|on of torture ............. 36
4.1. ConLlnulng Lhe flghL agalnsL lmpunlLy ............................................................................................ 36
4.2. lurLher sLrengLhenlng legal safeguards ......................................................................................... 37
4.3. Lnsurlng Lhe effecLlve funcLlonlng of Lhe nM .............................................................................. 38

2


Abbrev|at|ons

CC8M Crlmlnal Code of Lhe 8epubllc of Moldova
CC8M Crlmlnal rocedure Code of Lhe 8epubllc of Moldova
ulSl ulrecLoraLe for lnLernal SecurlLy and lnvesLlgaLlon (MlA)
LCP8 Luropean ConvenLlon on Puman 8lghLs and lundamenLal lreedoms
LCLP8 Luropean CourL of Puman 8lghLs
C1 Luropean CommlLLee for Lhe revenLlon of 1orLure
CC Ceneral rosecuLor's Cfflce
MCP8 Moldovan CenLre for Puman 8lghLs
MlA MlnlsLry of lnLernal Affalrs
MC! MlnlsLry of !usLlce
nM naLlonal revenLlve Mechanlsm (as foreseen by Lhe CCA1)
CCA1 CpLlonal roLocol Lo Lhe ConvenLlon agalnsL 1orLure
unCA1 un ConvenLlon agalnsL 1orLure
CA1 CommlLLee CommlLLee agalnsL 1orLure
unS81 un Speclal 8apporLeur on 1orLure


3


1. Introduct|on

1he presenL reporL was produced as flnal producL of Lhe ALlas of 1orLure pro[ecL: MonlLorlng and
revenLlng 1orLure Worldwlde - 8ulldlng upon Lhe Work of Lhe un Speclal 8apporLeur on 1orLure
(unS81), flnanced by Lhe Luropean Commlsslon under Lhe lnsLrumenL for uemocracy and Puman
8lghLs (LluP8/2010/222-226) and lmplemenLed ln Lhe 8epubllc of Moldova beLween SepLember
2011 and uecember 2013. 1he pro[ecL was carrled ouL by Lhe Ludwlg 8olLzmann lnsLlLuLe of Puman
8lghLs ln vlenna ln cooperaLlon wlLh Lhe Lwo local olnLs Lhe Legal 8esources CenLre from Moldova
and Lhe lnsLlLuLe of enal 8eform ln Moldova. 1he vlenna-based Leam was composed of !ulla kozma,
!ohanna Lober and !rg SLlppel ln parLnershlp wlLh lon Cuzun as represenLaLlve of Lhe Legal
8esources CenLre from Moldova and vlcLor Zaharla, represenLlng Lhe lnsLlLuLe of enal 8eform. 1he
Lhree organlsaLlons formed Lhe ALlas of 1orLure Leam" [olnLly deslgnlng and lmplemenLlng all
acLlvlLles descrlbed LhroughouL Lhls reporL.

As parL of Lhe global ALlas of 1orLure pro[ecL, lmplemenLed ln araguay, Moldova, uruguay and 1ogo,
Lhe pro[ecL almed aL supporLlng governmenLs and clvll socleLy ln Lhe LargeL counLrles ln Lhe
developmenL of local opLlon Lo lmplemenL Lhe recommendaLlons made by Lhe un Speclal
8apporLeur on 1orLure and oLher lnLernaLlonal and reglonal LorLure monlLorlng bodles. lL pursued
Lhe overall ob[ecLlve of conLrlbuLlng Lo Lhe promoLlon and proLecLlon of human rlghLs and Lhe rule of
law and sLrengLhenlng Lhe prevenLlon of LorLure and oLher forms of lll-LreaLmenL ln Lhe LargeL
counLrles. AddlLlonal speclflc ob[ecLlves addresslng Lhe needs of each counLry were developed ln Lhe
course of Lhe pro[ecL lmplemenLaLlon. 1he pro[ecL was lmplemenLed over 6 successlve pro[ecL vlslLs
Lo Lhe 8epubllc of Moldova by Lhe vlenna-based Leam beLween SepLember 2011 and !anuary 2013,
and followed up by Lhe local olnLs unLll uecember 2013. 1he acLlvlLles addressed a wlde range of
sLakeholders and LargeL groups and covered Lechnlcal asslsLance Lo Lhe developmenL of drafL laws,
Lhe developmenL of capaclLy key sLakeholders as well as neLworklng and advocacy acLlvlLles.

1he purpose of Lhe presenL reporL ls Lo provlde an overvlew of Lhe lmplemenLaLlon of Lhe ALlas of
1orLure pro[ecL ln Moldova, lncludlng a descrlpLlon of Lhe slLuaLlon found aL Lhe beglnnlng of Lhe
pro[ecL (ChapLer 2), an explanaLlon of Lhe cholce of flelds of engagemenL (Sub-ChapLer 3.1.), Lhe
lnLervenLlon loglc and lmplemenLaLlon sLraLegles, acLlvlLles lmplemenLed and resulLs achleved,
followed by an evaluaLlon of Lhe esLlmaLed lmpacL of Lhe pro[ecL (Sub-ChapLers 3.2.-3.3.). 1he reporL
concludes wlLh a brlef dlscusslon of furLher measures necessary Lo enhance Lhe susLalnablllLy of
progress achleved and Lo furLher advance ln Lhe prevenLlon of LorLure.
4


2. S|tuat|on of torture and |||-treatment |n Mo|dova - gaps and needs
|dent|f|ed |n the assessment phase 2011 |n re|at|on to the |mp|ementat|on
of recommendat|ons made by the UN Spec|a| kapporteur on 1orture

rlor Lo ldenLlfylng Lhe pro[ecL lmplemenLaLlon sLraLegy and work plan for Lhe lmplemenLaLlon of Lhe
ALlas of 1orLure pro[ecL ln Moldova, an assessmenL of Lhe slLuaLlon of LorLure and lll-LreaLmenL was
carrled ouL ln SepLember 2011. 1hls assessmenL was based on consulLaLlons wlLh a greaL varleLy of
sLakeholders, lncludlng represenLaLlves of Lhe CovernmenL, clvll socleLy and Lhe lnLernaLlonal
communlLy. 1aklng lnLo accounL prlor research, Lhe consulLaLlons malnly focussed on Lhe concerns
ralsed by lnLervlew parLners ln relaLlon Lo Lhe sysLemlc facLors conLrlbuLlng Lo Lhe occurrence of
LorLure and lll-LreaLmenL ln Moldova. 1he alm of Lhe assessmenL was Lo ldenLlfy achlevemenLs,
obsLacles and needs Lowards Lhe lmplemenLaLlon of recommendaLlons made by Lhe unS81 Lo Lhe
8epubllc of Moldova ln 2008 and oLher lnLernaLlonal and reglonal LorLure monlLorlng and human
rlghLs bodles (such as Lhe un CommlLLee agalnsL 1orLure (un CA1 CommlLLee), Lhe Luropean
CommlLLee for Lhe revenLlon of 1orLure (C1), and Lhe [udgemenLs by Lhe Luropean CourL of Puman
8lghLs (LCLP8) agalnsL Lhe 8epubllc of Moldova)
1
. 1he lnformaLlon recelved LhroughouL Lhe
consulLaLlons were furLher compleLed by legal analysls of exlsLlng leglslaLlon, avallable documenLs
and publlc reporLs from Moldovan clvll socleLy organlsaLlons and consolldaLed lnLo an assessmenL
reporL, clrculaLed wldely among Moldovan sLakeholders. 1he assessmenL reporL served as Lhe basls
for sLock-Laklng durlng Lhe klck-Cff Conference and Lhe subsequenL elaboraLlon of Lhe work plan for
Lhe ALlas of 1orLure pro[ecL ln Moldova.

ln Lhe followlng secLlons, a brlef overvlew of Lhe slLuaLlon of LorLure and lll-LreaLmenL ln Moldova ln
2011 as ldenLlfled ln Lhe assessmenL reporL ln relaLlon Lo Lhe maln areas of concern provldes Lhe
conLexL for Lhe descrlpLlon and evaluaLlon of pro[ecL acLlvlLles and resulLs ln ChapLer 3 of Lhls reporL.

2.1. S|tuat|on of torture and |||-treatment

1he lnformaLlon collecLed durlng Lhe assessmenL phase
2
suggesLed LhaL even Lhough Lhe number of
serlous cases of LorLure had decreased slnce Lhe lndependenL facL-flndlng of Lhe unS81 ln 2008,
pollce abuse of apprehended persons conLlnued Lo be prevalenL, parLlcularly ouLslde Lhe caplLal
Chlslnau
3
. ln addlLlon Lo forclng confesslons ln order Lo obLaln qulck resulLs ln Lhe lnvesLlgaLlon of

1
1he reporLs and documenLs whlch were regularly referred Lo by Lhe ALlas of 1orLure Leam lncluded !"#$% '(!' Lhe 8eporL of
Lhe un Speclal 8apporLeur on 1orLure on hls mlsslon Lo Lhe 8epubllc of Moldova, un uoc. A/P8C/10/44/Add.3, 12 lebruary
2009, Concludlng CbservaLlons of Lhe CommlLLee agalnsL 1orLure on Lhe 2nd perlodlc reporL of Lhe 8epubllc of Moldova,
un uoc. CA1/C/MuA/CC/2, 29 March 2010, LlsL of lssues prepared by Lhe CommlLLee prlor Lo Lhe submlsslon of Lhe Lhlrd
perlodlc reporL of Lhe 8epubllc of Moldova, un uoc. CA1/C/MuA/C/3, 11 !uly 2012, 8eporL by Lhe Luropean CommlLLee for
Lhe revenLlon of 1orLure on lLs vlslL Lo Lhe 8epubllc of Moldova from 21 Lo 27 !uly 2010, C1/lnf (2011) 8, 3 March 2011
(avallable only ln lrench and 8omanlan), 8eporL by Lhe Luropean CommlLLee for Lhe revenLlon of 1orLure on lLs vlslL Lo Lhe
8epubllc of Moldova from 1 Lo 10 !une 2011, C1/lnf (2012) 3, 12 !anuary 2012 (avallable only ln lrench and 8omanlan),
[udgmenLs by Lhe Luropean CourL of Puman 8lghLs agalnsL Lhe 8epubllc of Moldova accesslble aL
hLLp://hudoc.echr.coe.lnL/, for an analysls of case all [udgemenLs and Lhelr execuLlon see Legal 8esources CenLre from
Moldova, "LxecuLlon of !udgemenLs of Lhe Luropean CourL of Puman 8lghLs by Lhe 8epubllc of Moldova - 1997 - 2012",
2012, avallable aL
hLLp://cr[m.org/app/webrooL/uploaded/LxecuLlon_of_!udgmenLs_of_Lhe_LCP8_by_Lhe_8epubllc_of_Moldova_1997-
2012.pdf)
2
1he assessmenL was noL based on prlor lndependenL facL-flndlng and lnLervlews wlLh deLalnees, buL relled on lnformaLlon
galned Lhrough mulLlple lnLervlews wlLh sLaLe and non-sLaLe acLors and an analysls of avallable reporLs. See ALlas of
1orLure, "AssessmenL 8eporL - 8epubllc of Moldova", november 2011, avallable aL: www.aLlas-of-LorLure.org
3
uue Lo Lhe lack of a unlformed complalnLs managemenL sysLem aL Lhe Llme, Lhe real number of complalnLs of LorLure and
lll-LreaLmenL was dlfflculL Lo deLermlne. AL Lhe Llme of wrlLlng Lhe reporL, Lhere was sLlll no coherenL unlfled sysLem of daLa
ln place on number and Lypes of complalnLs, Lhe resulLs of crlmlnal lnvesLlgaLlon, Lhe number of cases broughL Lo courLs or
oLherwlse speclflc declslons or acLlons Laken by Lhe responslble lnsLlLuLlon (Lhus a lack of lnformaLlon and coordlnaLlon
perslsLed beLween Lhe rosecuLlon Cfflce, Lhe MlnlsLry of lnLerlor, Lhe enlLenLlary ueparLmenL, Lhe Supreme CourL of
!usLlce).
3


crlmes, physlcal abuse aL Lhe hands of Lhe pollce - and Lo a lesser exLenL wlLhln Lhe penlLenLlary
sysLem - was reporLedly also used as a meLhod of lnLlmldaLlon or "prevenLlve deLerrenL" Lo lmpose
auLhorlLy. MosL cases of lll-LreaLmenL ln Lhe conLexL of crlmlnal lnvesLlgaLlon were aLLrlbuLed Lo Lhe
pollce durlng arresL and Lhe prellmlnary lnvesLlgaLlon phase, and only few cases were llnked Lo Lhe
crlmlnal lnvesLlgaLors.

1he posL-elecLlon escalaLlon ln Aprll 2009 wlLh more Lhan 600 demonsLraLors belng lndlscrlmlnaLely
deLalned and wlde-spread allegaLlons of pollce bruLallLy and excesslve use of force
4
broughL Lhe
prevalence of LorLure and lll-LreaLmenL by Lhe pollce lnLo publlc debaLe. As a resulL, lncreased publlc
awareness and medla coverage accompanled by hlgh-level slgnals by Lhe Moldovan CovernmenL LhaL
LorLure was no longer LoleraLed conLrlbuLed Lo Lhe percepLlon ln 2011 LhaL Lhe problem was Laken
more serlously
3
. Several measure had been Laken Lo address Lhe problem of lmpunlLy and enhance
effecLlveness of lnvesLlgaLlons, mosL lmporLanLly a sysLem of anLl-LorLure prosecuLors had been
esLabllshed ln 2010, whlch ls descrlbed ln more deLall below. 1he sLrong commlLmenL by Lhe
CovernmenL Lo Lackle senslLlve lssues ln Lhe fleld of combaLlng and prevenLlng LorLure was also
evldenced by recenL sLraLeglc pollcy documenLs, such as Lhe naLlonal Puman 8lghLs AcLlon lan
(nP8A) and Lhe 2011-2016 !usLlce SecLor 8eform SLraLegy, whlch lnclude speclflc measures Lo
address Lhe lssue
6
.

AL Lhe same Llme, Lhe conLlnulng lack of effecLlve sancLlons agalnsL perpeLraLors of Lhe Aprll 2009
evenLs relnforced publlc dlsLrusL ln Lhe accounLablllLy of Lhe law enforcemenL servlces and Lhe
lndependence of Lhe prosecuLlon servlces and Lhe [udlclary. MosL lnLerlocuLors Lherefore llnked Lhelr
percepLlon of Lhe prevalence of lll-LreaLmenL aL Lhe hands of Lhe pollce Lo Lhe lack of effecLlve
lndependenL lnvesLlgaLlons and Lhe conLlnuaLlon of a culLure of lmpunlLy. Cn Lhe lnsLlLuLlonal level, a
prevalllng culLure of represslon wlLhln Lhe pollce, dysfuncLlonal lnLernal accounLablllLy mechanlsms
and a sysLem of evaluaLlng pollce performance accordlng Lo crlme deLecLlon raLes furLher supporLed
Lhe percepLlon LhaL Lhe law enforcemenL servlces had a long way Lo go ln order Lo lmplemenL Lhe
pollLlcally declared zero-Lolerance pollcy agalnsL LorLure ln pracLlce.
7
ln addlLlon, loopholes ln Lhe
legal framework, such as lnsufflclenL legal safeguards, deflclencles ln Lhe crlmlnallsaLlon of LorLure
and lll-LreaLmenL and problemaLlc sLaLuLes of llmlLaLlons for boLh crlmlnal and dlsclpllnary
procedures were ldenLlfled as conLrlbuLlng Lo Lhe lack of proLecLlon of persons ln deLenLlon from
LorLure and lll-LreaLmenL.

Slmllarly, Lhe slLuaLlon ln penlLenLlary faclllLles had noL slgnlflcanLly lmproved ln comparlson Lo Lhe
slLuaLlon found by Lhe unS81 ln 2008, desplLe some lnfrasLrucLure-relaLed lnvesLmenL by Lhe
CovernmenL. Accordlng Lo clvll socleLy organlzaLlons lnLervlewed durlng Lhe assessmenL vlslL, mosL
complalnLs from deLalnees conLlnued Lo concern lnhuman condlLlons of deLenLlon, such as Lhe lack
or poor quallLy of medlcal LreaLmenL, lack and poor quallLy of food, and Lhe punlLlve characLer of Lhe
prlson reglme. ln addlLlon, excesslve use of force by prlson guards was reporLedly noL uncommon.
1he penlLenLlary admlnlsLraLlon lLself acknowledged Lhe prevalence of lnLer-prlsoner vlolence ln
Moldovan prlson as an lssue of concern. 1he maln underlylng facLors for Lhe conLlnulng deflclencles
ln Lhe proLecLlon of Lhe rlghLs of deLalnees were Lhe lack of resources and lnfrasLrucLure, Lhe punlLlve
characLer of prlson pollcles, lneffecLlve or lnaccesslble complalnLs mechanlsms, and Lhe lack of

4
lor many oLhers, see AmnesLy lnLernaLlonal, "ollce LorLure and oLher lll-LreaLmenL", november 2009, avallable aL
hLLp://www.amnesLy.org/en/llbrary/lnfo/Lu839/009/2009, see also Lhe reporL of Lhe Luropean CommlLLee for Lhe
revenLlon of 1orLure followlng lLs vlslL Lo Lhe 8epubllc of Moldova ln 2010 (for deLalls fooLnoLe 1).
3
See e.g. AnLl-1orLure AcLlon lan by Lhe MlnlsLry of lnLernal Affalrs flrsL publlshed ln 2010, avallable aL
hLLp://www.mal.md/conLenL/3464.
6
See MlnlsLry of !usLlce of Lhe 8epubllc of Moldova, SLraLegy for Lhe 8eform of Lhe !usLlce SecLor 2011- 2016, AcLlon lan
for Lhe lmplemenLaLlon of Lhe !usLlce SecLor 8eform SLraLegy for Lhe years 2011-2016 and Lhe annual lmplemenLaLlon
reporLs, all documenLs are avallable aL hLLp://www.[usLlce.gov.md/caLegory.php?l=ro&ldc=133&nod=1&.
7
lor a comprehenslve sysLemlc assessmenL of Lhe weaknesses of law enforcemenL servlces and Lhe [usLlce sysLem see
Soros loundaLlon - Moldova, "Crlmlnal !usLlce erformance from a Puman 8lghLs erspecLlve", november 2009, avallable
aL hLLp://www.opensocleLyfoundaLlons.org/publlcaLlons/crlmlnal-[usLlce-performance-human-rlghLs-moldova.
6


LransparenL and lmparLlal lnLernal lnvesLlgaLlon lnLo complalnLs wlLhln Lhe penlLenLlary
admlnlsLraLlon.




2.2. Impun|ty and |ack of accountab|||ty

Already ln prevlous years, Lhe culLure of lmpunlLy and lack of accounLablllLy of perpeLraLors ad been
ldenLlfled by Lhe unS81 and subsequenL reporLs of lnLernaLlonal and reglonal LorLure monlLorlng
bodles as key facLor conLrlbuLlng Lo Lhe prevalence of lll-LreaLmenL ln Moldova
8
. ln 2011, lmpunlLy
conLlnued Lo prevall noL only ln relaLlon Lo Lhe absence of effecLlve lnvesLlgaLlon and prosecuLlon of
Lhe pollce abuse ln Lhe conLexL of Lhe Aprll 2009 evenLs
9
, buL also ln relaLlon Lo lll-LreaLmenL ln Lhe
"ordlnary" conLexL of Lhe crlmlnal [usLlce process and Lhe penlLenLlary lnsLlLuLlons
10
. ln Lhe analysls of
Lhe ALlas of 1orLure Leam, Lhe problem of lmpunlLy and lack of accounLablllLy of law enforcemenL
personnel and oLher publlc offlclals was based on a number of facLors and sysLemlc deflclencles
lncludlng loopholes ln Lhe legal framework regulaLlng Lhe crlmlnallzaLlon of LorLure, amblguous
provlslons relaLlng Lo Lhe lnsLlLuLlon of crlmlnal procedures, Lhe lack of effecLlve and lndependenL
lnvesLlgaLlon mechanlsms, Lhe lack of expedlenL and lmparLlal prosecuLlon and Lrlal proceedlngs,
lnsufflclenL legal safeguards Lo proLecL vlcLlms and wlLnesses, and llmlLed access Lo lndependenL
(forenslc) documenLaLlon of evldence. Moreover, Lhe role of Lhe lnvesLlgaLory [udge ln deLecLlng and
followlng up on cases of lll-LreaLmenL was weak so LhaL [udlclal conLrol over lnvesLlgaLlons dld noL
funcLlon ln pracLlce.

2.2.1. 1he |ega| framework for the f|ght aga|nst |mpun|ty

Whlle Lhe Moldovan arllamenL had lnLroduced a new ArLlcle 309
1
lnLo Lhe Crlmlnal Code of Lhe
8epubllc of Moldova (CC8M) deflnlng LorLure ln llne wlLh ArLlcle 1 CA1, Lhls provlslon had been
crlLlclzed by Lhe unS81 and Lhe un CA1 CommlLLee for Lhe classlflcaLlon of LorLure as a "less severe
crlme" and Lhe Loo lenlenL senLences aLLached Lo lL (ranglng from Lwo Lo flve years lmprlsonmenL).
11

As a consequence of Lhe caLegorlzaLlon of ArLlcle 309
1
as a less severe crlme, a sLaLuLe of llmlLaLlons
of flve years applled and Lhe senLences could be suspended ln accordance wlLh ArLlcle 90 CC8M.
12

1he appllcaLlon of sLaLuLes of llmlLaLlons Lo Lhe crlme of LorLure was ln dlrecL conLravenLlon of
Moldova's obllgaLlon under Lhe un CA1
13
and ArLlcle 3 LCP8
14
. Moreover, Lhe frequenL resorL Lo

8
8eporL of Lhe unS81, fooLnoLe 1, para. 90, Concludlng CbservaLlons of Lhe un CA1, fooLnoLe 1, para. 13.
9
SLaLlsLlcs ln relaLlon Lo Lralls and convlcLlons vary, accordlng Lo offlclal daLa from Lhe Ceneral rosecuLor's Cfflce aL Lhe
end of 2011, 38 crlmlnal cases had been lnlLlaLed ouL of 108 complalnLs recelved by Lhe prosecuLors ln relaLlon Lo Lhe posL-
elecLlon pollce abuse, of whlch only 27 cases agalnsL 43 offlcers had been senL Lo Lrlal, wlLh a resulL so far of Lhree
suspended senLences and 19 acqulLLals. hLLp://www.procuraLa.md/md/com/1211/1/4434/, for a crlLlcal analysls of Lhe
lnvesLlgaLlon lnLo Lhe 2009 evenLs, see Lhe reporL of AmnesLy lnLernaLlonal, "unflnlshed 8uslness", Aprll 2012, avallable aL
hLLp://www.amnesLy.org/en/llbrary/lnfo/Lu839/001/2012.
10
Accordlng Lo Lhe overall sLaLlsLlcs for Lhe year 2011 from Lhe Ceneral rosecuLor's Cfflce, only ln 108 cases (11) ouL of
938 reglsLered complalnLs, crlmlnal lnvesLlgaLlons were opened, ouL of Lhese, 92 (83) lnvesLlgaLlon were dlsconLlnued and
36 (33) were senL Lo Lhe courLs. hLLp://www.procuraLa.md/md/com/1211/1/4434/, for a comparlson of prosecuLlon
sLaLlsLlcs ln LorLure cases ln Lhe years 2009 - 2012 see, Legal 8esources CenLre, "8rleflng for Lhe Lu-Moldova Puman 8lghLs
ulalogue", 8 november 2012 (unpubllshed documenL).
11
8eporL of Lhe unS81, fooLnoLe 1 para. 90, Concludlng CbservaLlons of Lhe un CA1 CommlLLee, fooLnoLe 1 para. 14.
12
Poldlng perpeLraLors crlmlnally llable could addlLlonally be excluded Lhrough Lhe appllcaLlon of amnesLy or pardon
(ArLlcles 107 resp. 108 CC8M).
13
See e.g. Lhe recommendaLlon ln Lhe CommlLLee's reporL on LlechLensLeln CA1/C/LlL/CC/3, 23 May 2010, para. 9, reporL
on LlLhuanla CA1/C/L1u/CC/2, 19 !anuary 2009, para. 3, reporL on Sweden CA1/C/SWL/CC/3, 4 !une 2008, para. 10. See
also 8eporL of Lhe un Speclal 8apporLeur on 1orLure, A/P8C/10/44/Add.3, para. 90 a).
14
See e.g. [udgmenL of Lhe LCLP8 ln adureL vs Moldova, 3 !anuary 2010, (AppllcaLlon no. 33134/03) 61, 73, 73.
7


suspended senLences by Moldovan [udges had noL only been crlLlclzed lnLernaLlonally
13
, buL fuelled
publlc percepLlon LhaL perpeLraLors of LorLure could conLlnue publlc careers unpunlshed and LhaL
lmpunlLy prevalled.

AnoLher obsLacle Lo adequaLe punlshmenL of perpeLraLors ln pracLlce were overlapplng offences ln
Lhe CC8M, such as ArLlcle 309 (Coerclon Lo 1esLlfy) and ArLlcle 328 (Lxcess of ower or Lxcess of
Cfflclal AuLhorlLy), whlch lncluded a quallflcaLlon ln paragraph 2 relaLlng Lo abuse of offlclal power by
uslng (a) vlolence, [.], (c) LorLure or acLlons LhaL humlllaLe Lhe dlgnlLy of Lhe ln[ured parLy". 8oLh
provlslons carrled less severe punlshmenLs Lhan Lhe offence of LorLure ln ArLlcle 309
1
.
16
ln pracLlce,
Lhls overlap ln subsLanLlve provlslons led Lo Lhe frequenL appllcaLlon of less severe offences Lo cases
of LorLure and lll-LreaLmenL (such as abuse of power), Lhereby llmlLlng Lhe deLerrenL effecL of crlmlnal
prosecuLlon of LorLure and furLher nourlshlng a culLure of lmpunlLy. Moreover, several lawyers and
prosecuLors polnLed ouL durlng Lhe assessmenL phase LhaL oLher forms of cruel, lnhuman or
degradlng LreaLmenL below Lhe Lhreshold of LorLure (such as excesslve use of force durlng rloL
conLrol operaLlon) were noL sufflclenLly covered by Lhe exlsLlng provlslons ln Lhe CC8M.

WlLh regard Lo Lhe Crlmlnal rocedure Code of Lhe 8epubllc of Moldova (CC8M), Lhe provlslons
regulaLlng Lhe lnvesLlgaLlon and prosecuLlon of LorLure and lll-LreaLmenL fell shorL of ensurlng an
effecLlve and speedy process: Accordlng Lo ArLlcle 298 para. (4) CC8M Lhe excluslve compeLence of
Lhe prellmlnary examlnaLlon and crlmlnal lnvesLlgaLlon of Lhese cases was aLLrlbuLed Lo Lhe
prosecuLlon servlces. 1hls meanL LhaL by law, Lhe collecLlon of evldence ln LorLure cases had Lo be
carrled ouL by Lhe prosecuLlon servlces wlLhouL lnvolvemenL of Lhe pollce or oLher operaLlonal sLaff.
Whlle Lhls rule was reporLedly lnLroduce Lo ensure a cerLaln degree of lndependence ln Lhe
lnvesLlgaLlons, lL meanL LhaL ln pracLlce lnvesLlgaLlons had Lo be carrled ouL wlLhouL operaLlonal sLaff
and approprlaLe Lechnlcal equlpmenL. lurLhermore, ln accordance wlLh ArLlcle 274 CC8M, a
prellmlnary lnvesLlgaLlon was requlred Lo esLabllsh a prlma facle case before formally openlng Lhe
crlmlnal lnvesLlgaLlon. Powever, Lhe CC8M dld noL prescrlbe a Llme llmlL for Lhe prellmlnary
lnvesLlgaLlon, whlch as a consequence usually resulLed ln long delays before cases were formally
opened, Lhereby rlsklng LhaL cruclal evldence was losL. 1he slLuaLlon was aggravaLed by Lhe lack of
operaLlonal sLaff and problems relaLlng Lo Lhe lnsLlLuLlonal seL-up of Lhe prosecuLors mandaLed Lo
lnvesLlgaLe cases of LorLure and lll-LreaLmenL (see below).

AnoLher concern relaLed Lo Lhe pracLlce of applylng Lhe legally prescrlbed shlfL of Lhe burden of proof
ln accordance wlLh ArLlcle 10 para. (3) CC8M once a prlma facle case had been esLabllshed.
Accordlng Lo lnformaLlon from clvll socleLy and a former represenLaLlve of Lhe Supreme CourL of Lhe
8epubllc of Moldova, Lhe collecLlon of evldence by prosecuLors was ofLen noL done ln a Lhorough and
lmparLlal way, lncludlng securlng relevanL documenLs and sLaLemenLs from Lhe auLhorlLles concerned
wlLh Lhe alleged case. lnsLead, Lhe presumpLlon seemed ln Lhe ma[orlLy of cases '*'!"+# Lhe veraclLy
of Lhe complalnL. 1he relaLlvely low number of lnlLlaLed lnvesLlgaLlons ouL of Lhe LoLal number of
complalnLs (only 11 ln 2011), Lhe hlgh percenLage of dlsconLlnued lnvesLlgaLlons (83 ouL of all
lnlLlaLed lnvesLlgaLlons were dlsconLlnued ln 2011) and Lhe small percenLage of cases senL Lo courL
(33 ouL of all opened lnvesLlgaLlons) coupled wlLh an unusually hlgh acqulLLal raLe (almosL 30 of
Lhe LorLure cases dealL wlLh by Lhe courLs ln 2011 ended ln acqulLLals, whereas Lhe general acqulLLal
raLe ln crlmlnal cases was abouL 1,8 or 184 ouL of 10,088 crlmlnal cases examlned by [udges ln
2011)
17
seemed Lo conflrm LhaL Lhe requlred shlfL ln Lhe burden of proof was noL effecLlvely

13
See e.g. [udgmenL of Lhe LCLP8 ln valerlu and nlcolae 8o;ca versus Moldova, 20 CcLober 2009, (AppllcaLlon no.
41704/02) 76.
16
Powever, ArLlcle 116 para. (2) CC8M sLaLed LhaL ln case of a confllcL beLween a general and a speclal norm, only Lhe
speclal norm shall be applled.
17
lor more deLalls, see Legal 8esources CenLre from Moldova, "LxecuLlon of !udgmenLs of Lhe Luropean CourL of Puman
8lghLs by Lhe 8epubllc of Moldova - 1997 - 2012", 2012, pages 116 ff. , ( 6.3.1 ArLlcles 2 and 3 of Lhe ConvenLlon),
avallable aL
8


lmplemenLed ln pracLlce. Slmllar crlLlclsm was ralsed ln mulLlple [udgmenLs agalnsL Lhe 8epubllc of
Moldova by Lhe LCLP8, whlch regularly found procedural vlolaLlons of ArLlcle 3 LCP8 due Lo long
delays and lack of Lhoroughness and lmparLlallLy ln Lhe lnvesLlgaLlon of LorLure allegaLlons.
18


1he legal framework also had weaknesses wlLh regard Lo proLecLlng Lhe rlghLs of vlcLlms durlng
crlmlnal lnvesLlgaLlons. lor example, Lhe evldenLlary value ln CourL glven Lo medlcal documenLaLlon
of ln[urles provlded by Lhe CenLre for lorenslc Medlclne upon Lhe requesL by Lhe [udges and
prosecuLors was hlgher Lhan medlcal documenLaLlon requesLed by vlcLlms and lawyers and provlded
by clvll socleLy experLs speclallzed ln Lhe lsLanbul roLocol.
19
1hus, lL was nearly lmposslble for vlcLlms
Lo successfully provlde addlLlonal medlcal proofs of Lhelr ln[urles or submlL a second medlcal oplnlon.
1he CenLre for lorenslc Medlclne lLself was reporLedly lacklng capaclLles and forenslc
documenLaLlons were reporLedly conslderably delayed. lurLhermore, Lhe appeals procedure agalnsL
declslons Lo dlsconLlnue Lhe crlmlnal lnvesLlgaLlon had Lo be addressed Lo Lhe superlor prosecuLor
and noL dlrecLly Lo Lhe lnvesLlgaLlve [udge, Lhereby llmlLlng Lhe role of exLernal overslghL of Lhe
lnvesLlgaLlon process. llnally, a reporLedly hlgh number of reprlsals and LhreaLs agalnsL alleged
vlcLlms followlng Lhe lodglng of complalnLs frequenLly succeeded ln forclng vlcLlms Lo wlLhdraw Lhelr
complalnLs. 1hls seemed Lo be llnked Lo Lhe lack of effecLlve legal mechanlsms Lo suspend on full pay
pollce offlcers or penlLenLlary sLaff allegedly responslble for lll-LreaLmenL durlng Lhe crlmlnal
lnvesLlgaLlons proceedlngs. 1hose suspenslons (wlLhouL or wlLh reduced salary) ordered by Lhe
prosecuLlon servlces were mosLly annulled by subsequenL courL declslon.
20
1herefore, Lhe suspenslon
of alleged perpeLraLors from offlclal duLy pendlng Lhe ouLcome of Lhe lnvesLlgaLlon as an lmporLanL
safeguard agalnsL LorLure was pracLlcally non-exlsLenL.

2.2.2. 1he |nst|tut|ona| framework for the f|ght aga|nst |mpun|ty

ln response Lo Lhe conslderable number of [udgmenLs by Lhe LCLP8 agalnsL Moldova ln regard Lo
procedural vlolaLlons of ArLlcle 3 LCP8, and Lhe recommendaLlons by lnLernaLlonal mechanlsms,
lncludlng Lhe unS81 Lo creaLe an lndependenL lnvesLlgaLlon mechanlsm lnLo allegaLlons of LorLure
21
,
a separaLe unlL had been creaLed ln 2010 aL Lhe Ceneral rosecuLor's Cfflce (CC) excluslvely
mandaLed Lo coordlnaLe and supervlse all crlmlnal lnvesLlgaLlons lnLo allegaLlons of LorLure and lll-
LreaLmenL (AnLl-1orLure unlL), as well as dlrecLly underLake crlmlnal lnvesLlgaLlons ln excepLlonal or
hlgh level cases. lurLhermore, each reglonal prosecuLor's offlce appolnLed one or more prosecuLors
responslble for Lhe lnvesLlgaLlon of LorLure cases ln each rayon (dlsLrlcL) (speclallsed reglonal anLl-
LorLure prosecuLors). 1hese sLeps have proved Lo be an lmporLanL slgn of pollLlcal wllllngness Lo
professlonallse Lhe lnvesLlgaLlon lnLo LorLure allegaLlons. Powever, Lhe newly esLabllshed sLrucLure
carrled a number of shorLcomlngs and problems relaLlng Lo lLs lndependence and capaclLles, whlch
conslderably lmpeded lLs effecLlveness.

AmongsL oLhers, Lhe appolnLmenL of Lhe speclallsed anLl-LorLure prosecuLors lacked LransparenL
crlLerla, and no veLLlng processes had been carrled ouL Lo ensure personal quallflcaLlon and lnLegrlLy.
8y law, Lhe funcLlon of anLl-LorLure prosecuLor expllclLly prohlblLed any dlrecL cooperaLlon wlLh Lhe
pollce, however, ln pracLlce, Lhe speclallsed prosecuLors were reporLedly neverLheless lnvolved ln Lhe
lnvesLlgaLlon of oLher cases Lhereby creaLlng a dependency on Lhe cooperaLlon wlLh local law
enforcemenL offlclals. 1hls local embedmenL of Lhe speclallsed anLl-LorLure prosecuLors resulLed ln a
greaLer vulnerablllLy Lo corrupLlon and dld noL enhance publlc percepLlon of Lhe lndependence of Lhe

hLLp://cr[m.org/app/webrooL/uploaded/LxecuLlon_of_!udgmenLs_of_Lhe_LCP8_by_Lhe_8epubllc_of_Moldova_1997-
2012.pdf.
18
lor many oLhers, see e.g. Lhe [udgmenL of Lhe LCLP8 ln Lhe case of 8uzllov v Moldova, (AppllcaLlon no. 28633/03),
23.9.2009, para. 33 (lnacLlvlLy of Lhe prosecuLors), and ln Lhe case of adureL v Moldova, (AppllcaLlon no. 33134/03),
3.1.2010, para. 68 (undue delays).
19
See also Lhe un CA1 CommlLLee ln Lhls respecL, Concludlng CbservaLlons (fooLnoLe 1) para. 10.
20
AmnesLy lnLernaLlonal, "unflnlshed 8uslness" (fooLnoLe 11), p. 11.
21
8eporL of Lhe unS81, (fooLnoLe 1), para. 90.
9


prosecuLlon servlces ln cases of LorLure or lll-LreaLmenL. Moreover, Lhe new sLrucLure had noL been
allocaLed necessary resources and capaclLles, ln parLlcular Lhey dld noL dlspose of operaLlonal sLaff
and were noL furnlshed wlLh Lhe necessary forenslc equlpmenL Lo carry ouL effecLlve lnvesLlgaLlons.
22


lmpalrmenLs Lo Lhe effecLlve funcLlonlng of Lhe new sLrucLure also relaLed Lo Lhe relaLlonshlp
beLween Lhe speclallsed reglonal anLl-LorLure prosecuLors and Lhe AnLl-1orLure unlL aL Lhe CC. 1he
speclallsed anLl-LorLure prosecuLors ln Lhe reglons were obllged Lo lnform Lhe AnLl-1orLure unlL of
any complalnL Lhey had recelved wlLhln 24 hours and all declslons had Lo be coordlnaLed wlLh Lhe
unlL, whlch also approved Lhe flnal charges. Powever, due Lo Lhe lack of flnanclal and human
resources (only four sLaff were employed aL Lhe CC Lo supervlse around 70 speclallsed anLl-LorLure
prosecuLors wlLh no Lechnlcal supporL sLaff), Lhe AnLl-1orLure unlL was hardly capable of monlLorlng
all lnvesLlgaLlons and llmlLed Lhelr lnLervenLlons Lo cases agalnsL hlgh-ranklng pollce offlcers. 1he
speclallsed anLl-LorLure prosecuLors ln Lhe reglon conLlnued Lo perform Lhelr dally rouLlne ln mosL
cases under Lhe sole supervlslon of Lhe local prosecuLlon servlces, whlch could noL be consldered
lndependenL (see above).

WlLh regard Lo Lhe role of Lhe [udlclary ln flghLlng lmpunlLy, many sLakeholders expressed concern
abouL Lhe suscepLlblllLy of Lhe [udlclary Lo corrupLlon and Lhe lack of a pro-acLlve approach Lowards
ldenLlfylng cases of LorLure and lll-LreaLmenL. ln parLlcular, Lhe lnvesLlgaLlve [udges dld noL have Lhe
compeLence Lo order ex offlclo lnvesLlgaLlons lnLo allegaLlons of lll-LreaLmenL appearlng durlng Lhe
hearlng. Absence of a pro-acLlve role of [udges ln flghLlng lmpunlLy also concerned Lhe handllng of
evldence allegedly obLalned under coerclon or LorLure: Lven Lhough [udges had Lhe llberLy Lo assess
Lhe admlsslblllLy of evldence lndependenLly from Lhe declslon of Lhe prosecuLlon servlces wheLher Lo
open a crlmlnal lnvesLlgaLlon lnLo a case of alleged LorLure, Lhe [udlclal pracLlce suggesLed LhaL such
allegaLlons were mosLly lgnored ln Lhe declslon on Lhe admlsslblllLy of evldence.

2.2.3. Interna| accountab|||ty mechan|sm and comp|a|nts management

A furLher lmpedlmenL Lo effecLlvely combaLlng lmpunlLy ldenLlfled durlng Lhe assessmenL phase was
Lhe weakness of lnLernal accounLablllLy mechanlsm boLh wlLhln Lhe MlnlsLry of lnLernal Affalrs (MlA)
and Lhe enlLenLlary ueparLmenL aL Lhe MlnlsLry of !usLlce (MC!). ueflclencles relaLed Lo Lhe lnLernal
managemenL of complalnLs, Lhe sysLem of ln-servlce lnvesLlgaLlons and Lhe appllcaLlon of dlsclpllnary
sancLlons agalnsL personnel and Lhe relaLlonshlp beLween dlsclpllnary and crlmlnal procedures

ln Lhe penlLenLlary sysLem, lnvesLlgaLlons lnLo complalnLs and cases of alleged excesslve use of force
were carrled ouL by an lnLernal lnvesLlgaLlon unlL, whlch was also responslble for recommendlng
dlsclpllnary acLlons. Powever, no comprehenslve sysLem of complalnLs managemenL exlsLed and
sLaLlsLlcs on Lhe number of complalnLs and lnLernal lnvesLlgaLlons was noL avallable. 1he relaLlonshlp
beLween lnLernal dlsclpllnary procedures and crlmlnal lnvesLlgaLlons ln pracLlce remalned unclear
and clvll socleLy represenLaLlves reporLed LhaL lnLernal dlsclpllnary sancLlons agalnsL penlLenLlary
sLaff were mosLly llmlLed Lo "warnlngs" lf applled aL all.

WlLhln Lhe MlA, a unlfled complalnLs reglsLer exlsLed: all complalnLs recelved Lhrough dlfferenL
channels (Lelephone hoLllne, commlssarlaL, mall dlrecLly addressed Lo Lhe MlA eLc.) were cenLrally
reglsLered by Lhe uocumenLaLlon unlL and subsequenLly forwarded Lo Lhe responslble deparLmenLs.
lL remalned unclear, wheLher a duLy Lo reporL ex offlclo any allegaLlon of mlsconducL, abuse of power
or lll-LreaLmenL by MlA personnel exlsLed wlLhln Lhe law enforcemenL servlces and how fallure Lo
comply wlLh reporLlng duLles was sancLloned.


22
1he prohlblLlon Lo cooperaLe wlLh local law enforcemenL offlclals and Lhe fallure Lo allocaLe operaLlonal sLaff Lo Lhe anLl-
LorLure prosecuLors placed Lhem ln a dlfflculL poslLlon wlLh llLLle means Lo effecLlvely fulfll Lhelr Lask and also conLrlbuLed Lo
delays ln Lhe collecLlon of evldence.
10


1he ln-servlce lnvesLlgaLlon of complalnLs agalnsL Lhe publlc order pollce was supervlsed or carrled
ouL by Lhe ulrecLoraLe for lnLernal SecurlLy and lnvesLlgaLlon (ulSl)
23
, a separaLe organlsaLlonal unlL
dlrecLly subordlnaLed Lo Lhe MlnlsLer of lnLernal Affalrs, whlch could also propose respecLlve
dlsclpllnary sancLlons ln Lhe cases under lLs lnvesLlgaLlon. Accordlng Lo represenLaLlves of Lhe MlA,
mosL complalnLs recelved concerned Lhe publlc order pollce and amounLed Lo several Lhousand a
year. 1he ulSl was responslble for analyslng and lnvesLlgaLlng Lhe complalnLs ln order Lo esLabllsh
wheLher Lhe lnformaLlon was subsLanLlaLlng a ,%!-' .'/!$ case. lf Lhe examlnaLlon of Lhe complalnL
revealed elemenLs of a crlme or cerLaln admlnlsLraLlve offences under Lhe compeLence of crlmlnal
lnvesLlgaLlon bodles, Lhe flles had Lo be Lransferred Lo Lhe responslble bodles accordlng Lo Lhelr
respecLlve [urlsdlcLlon. lor complalnLs relaLed Lo an allegaLlon of LorLure, cruel or lnhuman
LreaLmenL, Lhe compeLence for prellmlnary lnvesLlgaLlons were excluslvely wlLh Lhe prosecuLlon
servlces.
24
1he ulSl was Lherefore by law noL compeLenL Lo lnvesLlgaLe such complalnLs, buL obllged
Lo lmmedlaLely refer such cases Lo Lhe prosecuLors.

Powever, sLaLlsLlcs recelved from Lhe MlA suggesLed LhaL desplLe Lhls legal obllgaLlon, Lhe ulSl had
lnvesLlgaLed and Laken declslon on Lhe veraclLy of allegaLlons of LorLure or even concluded
seLLlemenLs wlLh vlcLlms ln several lnsLances.
23
Whlle Lhe legal and regulaLory framework dld noL
prohlblL lnLernal lnvesLlgaLlon mechanlsm from Laken lLs own acLlons ln relaLlon Lo complalnLs abouL
LorLure !" '00!#!1" Lo referrlng such cases Lo Lhe prosecuLors, Lhe pracLlce as presenLed by Lhe MlA
suggesLed LhaL Lhe ulSl funcLloned as boLLle neck for Lhe fllLerlng of complalnLs wlLh poLenLlal
crlmlnal relevance. Such a pracLlce could however noL be consldered Lo be ln compllance wlLh
esLabllshed lnLernaLlonal sLandards for lnvesLlgaLlon lnLo allegaLlons of LorLure or lll-LreaLmenL, as
Lhe ulSl lacked Lhe necessary lnsLlLuLlonal lndependence.

A furLher problem relaLed Lo Lhe appllcaLlon of dlsclpllnary procedures ln cases where an allegaLlon
had been Lransferred for crlmlnal lnvesLlgaLlon Lo Lhe prosecuLlon servlces. ln Lhe ma[orlLy of such
cases, dlsclpllnary lnvesLlgaLlons were suspended pendlng Lhe ouLcome of crlmlnal lnvesLlgaLlons and
usually, no dlsclpllnary acLlons were Laken afLer Lhe crlmlnal lnvesLlgaLlon had been concluded (even
ln cases of dlsconLlnuaLlon due Lo lack of evldence), elLher because Lhe MlA was reporLedly noL
lnformed of Lhe ouLcome of Lhe crlmlnal case, or Lhe sLaLuLe of llmlLaLlons for dlsclpllnary sancLlons
had already explred, or MlA represenLaLlves were of Lhe oplnlon LhaL boLh procedures were muLually
excluslve. A lack of clarlLy ln Lhe procedural relaLlonshlp beLween dlsclpllnary and crlmlnal
lnvesLlgaLlon and a lack of or aL leasL lnefflclency ln Lhe communlcaLlon beLween Lhe auLhorlLles
lnvolved Lherefore seemed Lo consLlLuLe a serlous lmpedlmenL Lo effecLlve lnLernal accounLablllLy.
WlLh regard Lo complalnLs referrlng Lo acLs below Lhe Lhreshold of crlmlnal llablllLy, sLaLlsLlcs on
dlsclpllnary sancLlons applled were noL avallable or only used for lnLernal purposes.

Cn Lhe poslLlve slde, Lhe MlA had lssued several lnLernal lnsLrucLlons based on recommendaLlons
made by Lhe C1 ln relaLlon Lo Lhe lack of compllance of pollce offlcers wlLh Lhe rlghLs of arresLed
persons. 1hese lnsLrucLlons reporLedly dlrecLly addressed safeguards agalnsL LorLure and lll-
LreaLmenL, such as access Lo lndependenL medlcal docLors, Lhe Llmely lnformaLlon of rlghLs and
charges and Lhe documenLaLlon of deLenLlon ln Lhe deslgnaLed reglsLers. ln addlLlon, Lhe MlA had
embarked on an lnsLlLuLlonal reform process almlng aL !"#$% '(!' Lhe demlllLarlsaLlon of Lhe clvll
admlnlsLraLlon, Lhe adopLlon of a unlfled law on Lhe use of force and flrearms and Lhe developmenL
of communlLy orlenLed pollclng sLraLegles.
26
ln addlLlon, a speclflc Puman 8lghLs AcLlon lan and
lnformaLlon on obllgaLlons and measures Laken Lo combaL LorLure and lll-LreaLmenL had been

23
See MlnlsLry of lnLernal Affalrs, Crder no. 79, 19 March 2010.
24
ArLlcle 298 (4) CC8M, Lhe procedure Lo be followed ls descrlbed ln ArLlcle 274 CC8M.
23
1hese daLa ls avallable ln Lhe annual reporLs of Lhe MlA up Lo 2012.
26
AcLlon lan on Lhe lmplemenLaLlon of Lhe ConcepL of reformlng Lhe MlnlsLry of lnLernal Affalrs and lLs subordlnaLed and
decenLrallzed sLrucLures, avallable aL hLLp://www.mal.md/reforma_mal.
11


publlshed on Lhe MlnlsLry's webslLe.
27
1hrough a cooperaLlon wlLh unu Moldova pollce
commlssarlaLs and Lemporary deLenLlon faclllLles were gradually equlpped wlLh vldeo survelllance
and Lhe offlcers were obllged Lo record all lnLervlews wlLh suspecLs. Whlle Lhe provlslon of Lechnlcal
equlpmenL was an lmporLanL conLrlbuLlon Lo sLrengLhenlng safeguards agalnsL LorLure, doubLs
remalned on Lhe effecLlve use and sLorage of Lhe vldeo maLerlal by Lhe pollce auLhorlLles and
wheLher Lhls lnformaLlon was made avallable for defence lawyers upon requesL.

ln llghL of poslLlve slgnals among Lhe managemenL level of Lhe MlnlsLry Lo embark on Lhe creaLlon of
a more professlonal and human rlghLs compllanL law enforcemenL body, Lhe deflclencles ln Lhe
sysLem of lnLernal accounLablllLy were of parLlcular concern as Lhey ralsed doubLs on Lhe effecLlve
lmplemenLaLlon and follow-up Lo Lhe reform lnlLlaLlves ln operaLlonal pracLlce. WlLhouL sLrong
mechanlsm holdlng personnel accounLable Lo new professlonal sLandards, new lnsLrucLlons and
eLhlcal codes, Lhese reforms would rlsk remalnlng dead leLLer.

2.3. Lega| Safeguards

2.3.1. Length of po||ce custody and pre-tr|a| detent|on

Cne of Lhe mosL lmporLanL safeguards agalnsL LorLure and lll-LreaLmenL ls Lo llmlL Lhe Llme perlod as
shorL as posslble, whlch suspecLed persons spend ln pollce cusLody before belng Lransferred Lo
remand faclllLles under a dlfferenL auLhorlLy or released pendlng Lrlal. ln hls reporL on Moldova ln
2008, Lhe unS81 had descrlbed LhaL suspecLs or pre-Lrlal deLalnees were held weeks or even monLhs
ln pollce cusLody and Lhus aL a hlgh rlsk of belng sub[ecLed Lo LorLure and lll-LreaLmenL. Pe had Lhus
urged Lhe CovernmenL Lo change Lhe pracLlce of excesslve pre-Lrlal deLenLlon and reduce Lhe legally
permlLLed Llme llmlL of pollce cusLody from 72 hours, as provlded by ArLlcle 163 para (3) CC8M Lo
Lhe lnLernaLlonally recognlsed sLandard of a maxlmum of 48 hours, afLer whlch Lhe deLalnee should
normally be released or Lransferred Lo a pre-Lrlal faclllLy. ln addlLlon, all Lemporary deLenLlon
faclllLles (lus) were recommended Lo be Lransferred from Lhe auLhorlLy of Lhe MlA Lo Lhe MC!.

ln 2011, boLh recommendaLlons were noL lmplemenLed. 1he CovernmenL of Lhe 8epubllc of
Moldova relLeraLed ln response Lo successlve recommendaLlons by lnLernaLlonal human rlghLs
bodles and lnqulres LhaL lL was noL wllllng Lo reduce Lhe Llme llmlL for pre-Lrall deLenLlon from 72 Lo
48 hours ln order noL Lo endanger Lhe effecLlveness of pollce lnvesLlgaLlons.
28
uesplLe pollLlcal
agreemenL LhaL a Lransfer of Lhe responslblllLy for Lemporary deLenLlon faclllLles (lus) Lo Lhe MC!
was necessary, Lhls recommendaLlon had also noL been lmplemenLed ln pracLlce by Lhe end of 2011
due Lo a lack of approprlaLe faclllLles and recurrlng delays ln Lhe consLrucLlon of new arresL houses.

2.3.2. Access to a |awyer

1he role of access Lo a lawyer from Lhe momenL of arresL and ln parLlcular durlng Lhe flrsL
lnLerrogaLlon ls anoLher cruclal safeguard agalnsL LorLure and lll-LreaLmenL. ArLlcle 64 of Lhe CC8M
provlded Lhe rlghL Lo access Lo a lawyer from Lhe momenL of belng aLLrlbuLed suspecL sLaLus. ln
pracLlce, many lnlLlal lnLerrogaLlons by Lhe pollce were reporLedly sLlll carrled ouL wlLhouL Lhe
presence of a lawyer, and Lhe lnformaLlon recelved Lherefrom was used for wrlLlng an explanaLlon
on Lhe case" (ln many cases Lhe proLocols esLabllshlng suspecL sLaLus were only fllled ouL several

27
Annual reporLs on Lhe measures lmplemenLed and updaLes of Lhe MlA Puman 8lghLs AcLlon lan are accesslble aL
hLLp://www.mal.md/conLenL/3464.
28
1he recommendaLlon had been Laken up ln Lhe course of Lhe unlversal erlodlc 8evlew (u8) process of Lhe human
rlghLs obllgaLlon of Lhe 8epubllc of Moldova before Lhe un Puman 8lghLs Councll, see Lhe CuLcome 8eporL of u8 Worklng
Croup, un uoc A/P8C/19/18, 14 uecember 2011, para. 76.14 (recommendaLlons by AusLrla), ln response Lo Lhe llsL of
recommendaLlons, Lhe CovernmenL of Moldova noLed LhaL Lhe law enforcemenL bodles and Lhe [udlclary were noL ready
yeL" Lo adopL Lhls recommendaLlons, see Lhe vlews on concluslons and/or recommendaLlons, volunLary commlLmenLs" by
Lhe 8epubllc of Moldova, un uoc. A/P8C/19/18/Add.1, 6 March 2012, para. 20.
12


hours afLer Lhe arresL and afLer Lhe flrsL lnLerrogaLlons). 1he legal framework was Lhus lnLerpreLed ln
a way whlch llmlLed Lhe effecLlveness of Lhe rlghL Lo a lawyer on Lhe prevenLlon of LorLure ln Lhe
lnlLlal hours followlng Lhe arresL. AnoLher reason for llmlLed role of lawyers ln Lhe prevenLlon of
LorLure was LhaL Lhe exlsLlng sysLem of defence lawyers dld noL funcLlon properly due Lo lack of
lndependence, adequaLe fundlng and professlonal compeLences. Accordlng Lo clvll socleLy
lnformaLlon, Lhe ma[orlLy of defence lawyers lacked adequaLe quallflcaLlons and awareness of Lhelr
role ln Lhe prevenLlon of LorLure and rlghLs of deLalnees. AddlLlonally, Lhe bar assoclaLlon was
ldenLlfled as weak and lnacLlve wlLh regard Lo lLs role ln ensurlng regular ln servlce-Lralnlng and
capaclLy developmenL of lLs members. Powever, a new legal ald sysLem wlLh a sound legal basls had
been esLabllshed and was ln Lhe process of belng esLabllshed, lncludlng a plloL pro[ecL wlLh several
well quallfled publlc defenders flnanced Lhrough donor conLrlbuLlons.

2.3.3. Med|ca| personne| emp|oyed |n p|aces of detent|on

MandaLory lndependenL medlcal examlnaLlons upon enLry and Lransferral from and Lo deLenLlon
faclllLles, lncludlng documenLaLlon of any physlcal ln[urles, ls anoLher fundamenLal safeguard agalnsL
Lhe prevenLlon of LorLure and lll-LreaLmenL. 8esulLlng documenLs can be an lmporLanL plece of
evldence ln supporL of vlcLlms' complalnLs. ln Moldovan pollce and penlLenLlary faclllLles, para-
medlcs (so called "feldshers") are employed and responslble for medlcal examlnaLlons upon each
enLry and Lransferral from and Lo deLenLlon faclllLles, whlch ln prlnclple ls a very laudable measure.
1he problem ls LhaL Lhese para-medlcs do noL en[oy lnsLlLuLlonal lndependence from Lhe deLenLlon
faclllLy Lhey are worklng ln. uurlng hls facL-flndlng ln 2008, Lhe unS81 found LhaL Lhe lacklng
lndependence of Lhe feldshers consLlLuLed an lmpedlmenL agalnsL Lhe lmparLlal documenLaLlon of
abuses and poLenLlal allegaLlons of lll-LreaLmenL.
29
1he same slLuaLlon holds Lrue for medlcal
personnel worklng ln pollce commlssarlaLs, who are placed under Lhe lmmedlaLe auLhorlLy and dlrecL
overslghL of Lhe commander, who ls responslble for ensurlng Lhe dellvery of servlces and can lmpose
dlsclpllnary measures. ln order Lo proLecL medlcal personnel from confllcL of lnLeresLs and ensure
LhaL Lhelr work ls carrled ouL free from pressure by superlors, Lhe auLhorlLy over Lhe feldshers should
be Lransferred from Lhe MlA respecLlvely Lhe enlLenLlary ueparLmenL Lo Lhe MlnlsLry of PealLh.

2.4. revent|ve Mon|tor|ng

1he 8epubllc of Moldova raLlfled Lhe CpLlonal roLocol Lo Lhe ConvenLlon agalnsL 1orLure (CCA1) ln
2006 and subsequenLly deslgnaLed Lhe arllamenLary AdvocaLes and Lhe Moldovan CenLre for
Puman 8lghLs (MCP8) as naLlonal revenLlve Mechanlsm (nM) Lhrough amendlng Lhe Law on
arllamenLary AdvocaLes. ln addlLlon, a ConsulLaLlve Councll was esLabllshed "Lo provlde advlce and
asslsLance Lo Lhe arllamenLary AdvocaLes ln Lhe exerclse of Lhelr compeLences as a naLlonal
mechanlsm of LorLure prevenLlon".
30
1he Councll was composed of 10 members, lncludlng
represenLaLlves of human rlghLs nCCs, who should dlspose of relevanL professlonal experlence ln
dlfferenL flelds (e.g. lawyers, docLors, forenslc speclallsLs, psychlaLrlsLs eLc.) necessary Lo effecLlvely
monlLor places of deLenLlon. ln addlLlon, Lhe arllamenLary AdvocaLe who funcLloned as Pead of Lhe
MCP8 held ex offlclo Lhe poslLlon of resldenL of Lhe Councll.
31
All members of Lhe Councll were by
law endowed wlLh Lhe same rlghLs and compeLences as Lhe arllamenLary AdvocaLes ln exerclslng
Lhe Lask of Lhe nM, lncludlng full access Lo all places of deLenLlon and all relevanL lnformaLlon, Lhe
rlghL Lo conducL prlvaLe lnLervlews, requesL explanaLlons from Lhe auLhorlLles and lnvesLlgaLe and
reporL on human rlghLs vlolaLlons agalnsL persons ln deLenLlon. ln shorL, Lhe 8epubllc of Moldova had
chosen an Cmbuds-plus model Lo funcLlon as nM, namely Lhe exlsLlng MCP8 as naLlonal Puman

29
See reporL of Lhe unS81 (fooLnoLe 1), para. 67.
30
ArLlcle 23
2
Law on arllamenLary AdvocaLes, no. 1349-xlll, 17 CcLober 1997. ueLalls on Lhe composlLlon, mandaLe and
worklng procedures of Lhe Councll were regulaLed by Lhe 8egulaLlon on Lhe organlzaLlon and funcLlonlng of Lhe
ConsulLaLlve Councll adopLed by Lhe Pead of Lhe Puman 8lghLs CenLre.
31
ArLlcles 3-8 of Lhe 8egulaLlon.
13


8lghLs lnsLlLuLlon ln cooperaLlon wlLh a speclally esLabllshed consulLaLlve body of clvll socleLy
represenLaLlves.

Soon afLer lLs esLabllshmenL lL became clear LhaL Lhe Moldovan nM faced serlous obsLacles
prevenLlng lL from effecLlvely exerclslng lLs mandaLe of LorLure prevenLlon. 1he lmpedlmenLs were
parLly rooLed ln amblgulLles ln Lhe legal basls, buL also relaLed Lo a lack of clear worklng procedures
and adequaLe capaclLles and resources. uurlng hls vlslL ln 2008, Lhe unS81 was confronLed wlLh
dlfferenL sLaLemenLs as Lo whlch enLlLy consLlLuLed Lhe nM and was responslble for declslon-
maklng and exLernal represenLaLlon. ln facL, Lhe legal framework ln place was noL clear on Lhls polnL:
Whlle Lhe Law on arllamenLary AdvocaLes deslgnaLed all four advocaLes as nM, lL also endowed
Lhe Councll wlLh Lhe rlghL Lo underLake prevenLlve vlslLs. 1he 8egulaLlon esLabllshlng Lhe Councll
wenL even furLher and declared Lhe members of Lhe Councll compeLenL for presenLlng
recommendaLlons Lo Lhe auLhorlLles. AL Lhe same Llme, Lhe 8egulaLlon esLabllshlng Lhe MCP8 as
naLlonal Puman 8lghLs lnsLlLuLlon menLloned LhaL an advlsory councll Lo be esLabllshed would
consLlLuLe Lhe nM
32
. ln pracLlce, Lhe auLhorlLles argued LhaL lL was Lhe arllamenLary AdvocaLe, who
chalred Lhe Councll and Lhe MCP8 LhaL was formally consLlLuLed Lhe nM. laced wlLh Lhese legal
amblgulLles, Lhe unS81 emphaslsed LhaL Lhe deslgnaLlon of one person could "1# be consldered ln
llne wlLh Lhe requlremenLs of Lhe CCA1 and recommended Lo clarlfy Lhe legal basls on Lhls lssue.
AnoLher maln concern ralsed by Lhe unS81 relaLed Lo Lhe lack of sufflclenL flnanclal resources
allocaLed Lo Lhe nM, resulLlng ln a slLuaLlon where Lhe members of Lhe ConsulLaLlve Councll dld noL
recelve any remuneraLlon for Lhelr work and even had Lo meeL expenses for Lravel cosLs from Lhelr
prlvaLe means.

uurlng a follow-up Lralnlng provlded by Lhe unS81 ln 2009, Lhe nM was sLlll lacklng Lhe necessary
resources, and Lhe arllamenLary AdvocaLe had dlfflculLles fllllng Lhe poslLlons of Lhe ConsulLaLlve
Councll as Lhe repuLaLlon of Lhe mechanlsm had deLerloraLed and represenLaLlves of clvll socleLy and
human rlghLs nCCs were relucLanL Lo parLlclpaLe. 1he underlylng reasons were noL only relaLed Lo
Lhe lack of flnanclal remuneraLlon buL also Lo Lenslons and growlng mlsLrusL beLween Lhe
arllamenLary AdvocaLe and Lhe members of Lhe ConsulLaLlve Councll. As a resulL, monlLorlng vlslLs
were lncreaslngly carrled ouL separaLely by boLh enLlLles. ln splLe of efforLs by Lhe lnLernaLlonal
communlLy, flrsL and foremosL unu, Lo supporL Lhe nM, Lhe slLuaLlon conLlnued Lo be dlfflculL ln
2010 when several members of Lhe Councll reslgned ouL of proLesL agalnsL Lhe lack of clarlLy of
worklng procedures and Lhe dlvlslon of compeLences beLween Lhe Councll and Lhe arllamenLary
AdvocaLe, whlch had even lead Lo parallel reporLlng.

uurlng Lhe assessmenL vlslL ln 2011, Lhe ALlas of 1orLure Leam found many of Lhe same challenges
sLlll exlsLlng: 1he nM had sLlll noL been provlded wlLh sufflclenL resources
33
, and Lhe legal
amblgulLles as Lo whlch enLlLy consLlLuLed Lhe nM remalned. Lven Lhough nlne new members of
Lhe Councll had been recrulLed, concerns were ralsed as Lo Lhe lack of Lransparency ln Lhelr
appolnLmenL and crlLlclsm was ralsed as Lo Lhe personal lndependence and quallflcaLlon of several
new members.
34
ln addlLlon, dlfferences as Lo Lhe lnLernal declslon-maklng procedure beLween Lhe
Councll and Lhe arllamenLary AdvocaLe on Lhe adopLlon of recommendaLlons and Lhe publlcaLlon of
reporLs as well as weak capaclLles Lo conducL effecLlve monlLorlng vlslLs conLlnued Lo lmpede Lhe
proper funcLlonlng of Lhe mechanlsm.

As a reacLlon Lo Lhe dlfflculLles encounLered, Lhe arllamenLary AdvocaLe was plannlng Lo creaLe a
separaLe admlnlsLraLlve unlL wlLhln Lhe MCP8 Lo more effecLlvely coordlnaLe Lhe work Lhe nM. 1hls
would however noL address Lhe conLlnulng problems ln Lhe relaLlonshlp beLween Lhe CenLre and Lhe

32
arllamenLary 8esoluLlon adopLlng Lhe 8egulaLlon on Lhe CenLre for Puman 8lghLs, no. 37-xvl, 20 March 2008.
33
1he arllamenLary AdvocaLe menLloned ln Lhe consulLaLlons LhaL he had been able Lo secure some flnanclal means Lo
relmburse Lhe Lravel cosLs for monlLorlng vlslLs carrled ouL by members of Lhe ConsulLaLlve Councll.
34
MosL of Lhe new members worked ln offlclal capaclLy prlor Lo Lhelr deslgnaLlon, e.g. ln penlLenLlarles or Lhe MlA. Merely a
Lhlrd of Lhe appolnLed members had a human rlghLs background.
14


Councll. 1he ma[orlLy of sLaLe and non-sLaLe sLakeholders seemed Lo be aware LhaL only a Lhorough
legal and lnsLlLuLlonal reform of Lhe nM would allow a fresh sLarL and a rebulldlng of LrusL ln Lhe
lnsLlLuLlon. AL Lhe Llme of Lhe assessmenL vlslL, a revlslon of Lhe legal and lnsLlLuLlonal seL-up of Lhe
CmbudslnsLlLuLlon, lncludlng Lhe nM was already envlsaged as parL of Lhe AcLlon lan for Lhe
!usLlce SecLor 8eform SLraLegy for 2012, whlch was Lo be supplemenLed by capaclLy developmenL for
Lhe reformed lnsLlLuLlon.
33


8esldes Lhe nM, local monlLorlng commlsslons had been esLabllshed by Lhe Law on clvll conLrol of
respecL for human rlghLs ln lnsLlLuLlons whlch deLaln persons" (2008), followed by a regulaLlon on Lhe
funcLlonlng and organlsaLlon of local clvll socleLy monlLorlng commlsslons ln 2009. 8ased on Lhls legal
framework, ln each rayon (dlsLrlcL) a commlsslon composed of clvll socleLy acLors had Lo be lnsLalled
by Lhe local auLhorlLles for Lhe monlLorlng of places of deLenLlon. Powever, no flnanclal means were
foreseen Lo supporL Lhe esLabllshmenL of Lhe commlsslons. Several lnLerlocuLors polnLed ouL LhaL Lhe
esLabllshmenL process was slow. Clvll socleLy members were reporLedly relucLanL Lo form parL of Lhe
commlsslons, due Lo Lhe unremuneraLed naLure of Lhe work and lack of experlence ln monlLorlng Lhe
places of deLenLlon. As a resulL, some commlsslons lncluded publlc offlclals, desplLe Lhe facL LhaL Lhey
were by law excluded from parLlclpaLlng, Lhus ralslng doubLs abouL Lhe lndependence and
funcLlonallLy of Lhe sysLem. 1he MP8C and several clvll socleLy organlsaLlons had lnlLlaLed a number
of round Lables and Lralnlngs Lo empower members of exlsLlng local commlsslons and faclllLaLe Lhe
seLLlng up of new ones ln Lhe remalnlng dlsLrlcLs. A polnL of dlscusslon remalned, how Lhe work of
Lhe commlsslons could be llnked Lo Lhe nM ln order Lo achleve a useful coordlnaLlon beLween Lhe
Lwo monlLorlng sysLems.


33
See Lhe AcLlon lan, speclflc area of lnLervenLlon 6.2.1. AcLlon no. 1, and speclflc area of lnLervenLlon 6.4.3., MllesLones
no. 3 and 6.
13


3. Strateg|es, act|v|t|es, and resu|ts of the pro[ect |mp|ementat|on September
2011 - December 2013

3.1. Strateg|c cho|ce of f|e|ds of engagement and deve|opment of |ntervent|on p|an

8ased on Lhe flndlngs of Lhe assessmenL phase, Lhe lmplemenLaLlon phase of Lhe ALlas of 1orLure
pro[ecL ln Moldova was launched wlLh Lhe klck-Cff Conference ln november 2011. 1he conference
presenLed Lhe opporLunlLy Lo convene more Lhan 80 represenLaLlves of clvll socleLy organlsaLlons,
Lhe MlA, MC!, Lhe prosecuLlon servlces, Lhe Cmbudsofflce and oLher publlc lnsLlLuLlons, as well as
represenLaLlves of Lhe lnLernaLlonal communlLy ln LhemaLlc worklng groups. 1he worklng groups
were sLrucLured around Lhe maln challenges faced by Lhe 8epubllc of Moldova ln relaLlon Lo Lhe flghL
agalnsL LorLure and lll-LreaLmenL ldenLlfled ln Lhe assessmenL reporL: 1) 1he lnsLlLuLlonal and legal
basls and capaclLy of Lhe Cmbudsofflce and Lhe naLlonal revenLlve Mechanlsm, 2) 1he leglslaLlve
framework relaLlng Lo Lhe crlmlnallsaLlon and prosecuLlon of LorLure and lll-LreaLmenL, 3) lnLernal
accounLablllLy and complalnLs procedures, 4) lnvesLlgaLlon and prosecuLlon of LorLure and lll-
LreaLmenL, 3) rocedural safeguards agalnsL LorLure.

1o ensure a broad lncluslon of dlfferenL vlews and experLlse, Lhe dlscusslons were launched by a brlef
presenLaLlon from clvll socleLy and sLaLe experLs on Lhe maln challenges and lmprovemenLs ln each
LhemaLlc fleld. 1he worklng groups developed a comprehenslve llsL of challenges and
recommendaLlons how Lo address Lhem. arLlclpanLs were also asked Lo dlscuss how Lhe ALlas of
1orLure pro[ecL could conLrlbuLe Lo achlevlng Lhe lmplemenLaLlon of Lhese recommendaLlons.
1hrough Lhe exchange ln Lhe worklng groups, parLlclpanLs as well as Lhe ALlas of 1orLure Leam
became more aware of ongolng reform lnlLlaLlves and oLher acLlons belng lmplemenLed or planned
by oLher lnLernaLlonal and local acLors. As a resulL of Lhe conference, a wlde range of sLakeholders
had developed a broader undersLandlng of Lhe sysLemlc facLors conLrlbuLlng Lo Lhe perslsLence of
LorLure and lll-LreaLmenL, sLeps already Laken by Lhe 8epubllc of Moldova Lo lmplemenL Lhe
recommendaLlons of Lhe unS81 and oLher LorLure monlLorlng bodles, and concreLe measures
necessary Lo furLher lmprove Lhe slLuaLlon.

1he ouLcome of Lhe conference LogeLher wlLh Lhe assessmenL reporL served as Lhe basls for Lhe
selecLlon of enLry polnLs and Lhe elaboraLlon of an lnLervenLlon plan for Lhe lmplemenLaLlon of Lhe
ALlas of 1orLure pro[ecL ln Lhe 8epubllc of Moldova. 1he prlorlLlsaLlon of LhemaLlc flelds of
engagemenL and Lhe cholce of lnLervenLlon loglcs and acLlvlLles for each of Lhem was based on
several conslderaLlons: All LhemaLlc areas of work were selecLed ln order Lo conLrlbuLe Lo Lhe
lmplemenLaLlon of Lhe recommendaLlons of Lhe unS81 and prlorlLlsed on Lhe basls of Lhelr percelved
urgency and relevance for lmprovlng Lhe slLuaLlon of LorLure. Secondly, Lhe ALlas of 1orLure Leam
consldered lL Lo be cruclal Lo use Lhe momenLum of Lhe exlsLlng framework sLraLegy for Lhe Lu
funded reform of Lhe Moldovan [usLlce secLor and accompanylng AcLlon lan, Lo promoLe Lhe
lnLegraLlon of recommendaLlons relaLed Lo Lhe flghL agalnsL LorLure and lll-LreaLmenL lnLo Lhe larger
publlc reform programmes ln Moldova. Moreover, several lLems of Lhe !usLlce SecLors 8eform AcLlon
lan dlrecLly concerned combaLlng LorLure and lll-LreaLmenL. Wherever posslble, Lhe ALlas of 1orLure
pro[ecL Lherefore almed aL supporLlng planned or ongolng lnsLlLuLlonal and legal reforms.
ConLrlbuLlng Lo Lhe change processes envlsaged for 2012/2013 by Lhe Moldovan CovernmenL was
lmperaLlve slnce local acLors had no or only very llmlLed capaclLles Lo absorb yeL anoLher addlLlonal
reform lnlLlaLlves.

AnoLher facLor Laken lnLo accounL ln Lhe selecLlon of LhemaLlc prlorlLles and lmplemenLaLlon
sLraLegles was Lhe relaLlvely shorL Llme frame of Lhe ALlas of 1orLure pro[ecL, favourlng lnLervenLlons
LhaL focussed on sLakeholders expressly wllllng Lo cooperaLe. ln Lhls respecL, lL was lndlspensable
LhaL Lhe pro[ecL focal polnLs Lhe Legal 8esources CenLre from Moldova and lnsLlLuLe of enal 8eform
dlsposed of excellenL knowledge of local sLakeholders and Lhelr respecLlve openness Lo reforms ln
16


Lhe fleld of LorLure prevenLlon and had access Lo relevanL auLhorlLles and lnLer-lnsLlLuLlonal worklng
groups. A furLher aspecL Laken lnLo accounL ln Lhe cholce of acLlvlLles was Lhe need Lo avold
dupllcaLlon wlLh ongolng or planned acLlons of oLher lnLernaLlonal and naLlonal acLors. AL Lhe same
Llme, Lhe ALlas of 1orLure Leam always worked on Lhe assumpLlon LhaL Lhe lmpacL of pro[ecL acLlvlLles
would be slgnlflcanLly enhanced lf synergles could be creaLed wlLh oLher naLlonal or lnLernaLlonal
lnlLlaLlves.

8ased on Lhese conslderaLlons, Lhe lnLervenLlon plan focussed on Lhe Loplc of lmpunlLy, wlLh Lhe
LhemaLlc ob[ecLlves of
strengthen|ng the |ega| framework aga|nst |mpun|ty by |mprov|ng the cr|m|na||sat|on of
torture and |||-treatment |n the Cr|m|na| Code of the kepub||c of Mo|dova
promot|ng further procedura| and |nst|tut|ona| reform of the ant|-torture prosecutors
promot|ng an |mproved re|at|onsh|p between cr|m|na| and d|sc|p||nary accountab|||ty to
effect|ve|y address the accountab|||ty gap
enhanc|ng the capac|t|es of defence |awyers |n re|at|on to the|r ro|e |n the prevent|on of
torture and the f|ght aga|nst |mpun|ty.

WlLh vlew Lo prlor engagemenL of Lhe unS81 and lLs Leam ln capaclLy developmenL of Lhe Moldovan
nM, and Lhe express lnvlLaLlon by Lhe MC! Lo Lhe ALlas of 1orLure Leam Lo parLlclpaLe ln Lhe
CovernmenL-led Worklng Croup on Lhe reform of Lhe law of Lhe CmbudslnsLlLuLlon, contr|but|ng to
the reform of the Nat|ona| revent|ve Mechan|sm was chosen as second maln focus.

lnlLlally, addlLlonal enLry polnLs had been ldenLlfled, lncludlng supporLlng Lhe capaclLy developmenL
for Lhe [udlclary on sLandards for effecLlvely flghLlng lmpunlLy and Lhe lnadmlsslblllLy of LalnLed
evldence, organlsaLlonal reform and Lralnlng for Lhe pollce, Lhe esLabllshmenL of effecLlve and
accesslble complalnLs procedures for persons ln deLenLlon and sLrengLhenlng safeguards agalnsL
LorLure and lll-LreaLmenL. Powever, Lhese areas were noL furLher pursued LhroughouL Lhe pro[ecL
lmplemenLaLlon, because elLher oLher acLors coverlng Lhe fleld
36
, acLlons on Lhe parLlcular lssue were
foreseen ln Lhe naLlonal AcLlon lan ouLslde Lhe Lerm of lmplemenLaLlon of Lhe ALlas of 1orLure
pro[ecL
37
, Lhe lssues were consldered Lo be Loo complex Lo be effecLlvely addressed wlLhln Lhe
llmlLed Llme and flnanclal resource of Lhe pro[ecL
38
, Lhe prlorlLy ln Lhe naLlonal reform process was
puL on oLher lssues and a relucLance of auLhorlLles Lo address addlLlonal polnLs was Lo be expecLed
39
,
or lL was clear LhaL Lhe auLhorlLles were noL lnLeresLed Lo move forward on cerLaln Loplcs
40
.

1he LhemaLlc flelds of engagemenL were followed LhroughouL Lhe pro[ecL lmplemenLaLlon. Powever,
Lhe respecLlve lmplemenLaLlon sLraLegles and concreLe acLlvlLles were conLlnuously adapLed Lo Lhe
ongolng leglslaLlve, pollLlcal and soclal developmenLs ln Lhe counLry.
41
1owards Lhe second half of Lhe

36
1he Councll of Lurope was lmplemenLlng a serles of Lralnlngs for [udges and prosecuLors on LCP8 sLandards, lncludlng on
Lhe prohlblLlon of LorLure ln Lhe framework of Lhe Lu-funded uemocracy SupporL rogramme", unu ln Moldova was
lmplemenLlng an Lu-funded pro[ecL on SLrengLhenlng Lhe forenslc examlnaLlon of LorLure and oLher forms of lll-LreaLmenL
ln Moldova", whlch lncluded worklng on amendmenLs Lo Lhe CC8M Lo sLrengLhen procedural safeguards agalnsL LorLure
and capaclLy developmenL for Lhe CenLre for lorenslc Medlclne.
37
lor example, leglslaLlve reforms Lo sLrengLhen Lhe sLandlng of vlcLlms and wlLnesses ln crlmlnal proceedlngs and Lo
lmprove proLecLlon measures were only foreseen Lo be lnlLlaLed aL Lhe end of 2013 and reallzed LhroughouL 2014, see Lhe
AcLlon lan (fooLnoLe 6), Speclflc lnLervenLlon Area no. 6.4.6.
38
LffecLlvely addresslng Lhe reform needs of Lhe pollce would have requlred a longer-Lerm lnvolvemenL LogeLher wlLh
sufflclenL resources Lo provlde susLalned capaclLy developmenL.
39
1he Loplc of complalnLs mechanlsms, Lhough foreseen ln Lhe !S8S and AcLlon lan, was seemlngly aLLrlbuLed a lower
prlorlLy by Lhe MC! and ln parLlcular by Lhe penlLenLlary admlnlsLraLlon.
40
lor example, as menLloned above, Lhe Moldovan CovernmenL had offlclally sLaLed LhaL lL dld noL lnLend Lo lmplemenL
Lhe recommendaLlon by Lhe unS81 Lo llmlL pollce cusLody Lo 48 hours.
41 Where relevanL Lo Lhe overall pro[ecL ob[ecLlves, Lhe ALlas of 1orLure Leam also lncluded smaller ad-hoc acLlvlLles where
relevanL. lor example, ln May 2012, Lhe pro[ecL Leam senL a leLLer Lo Lhe presldenL of Lhe 8epubllc of Moldova requesLlng
noL Lo promulgaLe Lhe amendmenLs Lo Lhe CC8M on mandaLory chemlcal casLraLlon, whlch were ln conLradlcLlon wlLh
Moldova's obllgaLlon under Lhe un CA1.
17


pro[ecL lmplemenLaLlon, Lhe pro[ecL Leam lncreased cooperaLlon wlLh oLher acLors on Lhose areas
where lL became clear LhaL Langlble resulLs could noL be achleved wlLhln Lhe pro[ecL lLself and Lo
hand over flelds of engagemenL Lo acLors, who could follow-up beyond Lhe duraLlon of Lhe ALlas of
1orLure pro[ecL.

ln Lhe followlng, a brlef descrlpLlon of Lhe respecLlve lnLervenLlon loglc, acLlvlLles lmplemenLed and
resulLs achleved wlll be provlded for each LhemaLlc fleld of engagemenL, followed by a dlscusslon of
Lhe esLlmaLed lmpacL of Lhe pro[ecL acLlvlLles, lncludlng an analysls of Lhose facLors lmpedlng or
conLrlbuLlng Lo Lhe achleved ouLcomes.


3.2. Address|ng the accountab|||ty gap by strengthen|ng the |ega|, procedura| and
|nst|tut|ona| framework aga|nst |mpun|ty

3.2.1. Strengthen|ng the |ega| framework aga|nst |mpun|ty by |mprov|ng the
cr|m|na||sat|on of torture and |||-treatment |n the Mo|dovan Cr|m|na| Code

Intervent|on Log|c

1he crlmlnallsaLlon of LorLure ln llne wlLh ArLlcle 1 un CA1 as a serlous offence wlLhouL sLaLuLe of
llmlLaLlon and Lhe provlslon of approprlaLe senLences ls Lhe mlnlmum requlremenL for effecLlvely
flghLlng lmpunlLy. ln Lhls regard, Lhe deflclencles ln Lhe Moldovan legal framework had been clearly
ldenLlfled durlng Lhe assessmenL phase as one of Lhe maln facLors for Lhe perslsLence of lmpunlLy. ln
addlLlon, an abundance of successlve recommendaLlons by lnLernaLlonal LorLure monlLorlng bodles
and [udlclal declslons by Lhe LCLP8 was avallable recommendlng speclflc amendmenLs Lo Lhe
Moldovan Crlmlnal Code (CC8M). 1hls reform need was recognlsed ln Lhe offlclal AcLlon lan of Lhe
!usLlce SecLor 8eform for 2012, whlch lncluded a speclflc AcLlon under Lhe responslblllLy of Lhe MC!
requlrlng "Lhe developmenL of drafL legal amendmenLs Lo Lhe Crlmlnal Code Lo remove Lhe
conLradlcLlons concernlng Lhe deflnlLlon of LorLure and lll-LreaLmenL"
42
. SupporLlng Lhe revlslon of
Lhe CC8M Lhrough Lechnlcal experLlse and Lhe faclllLaLlon of a parLlclpaLory legal reform process,
whlch would ralse awareness on Lhe lmporLance of Lhe flghL agalnsL lmpunlLy, was Lherefore an
evldenL and Llmely enLry polnL for Lhe ALlas of 1orLure pro[ecL.

lrom Lhe beglnnlng, Lhe acLlvlLles ln Lhls fleld were almed aL ensurlng parLlclpaLlon of all relevanL
sLakeholders ln order Lo creaLe a broad ownershlp for Lhe elaboraLlon of drafL amendmenLs Lo Lhe
CC8M, Lhe broad parLlclpaLlon also ensured LhaL Lhe experlence from pracLlLloners and experLs, such
as prosecuLors, [udlclary, and defence lawyers as well as academla were Laken lnLo accounL. 1he role
of Lhe ALlas of 1orLure Leam was boLh Lo provlde guldance on lnLernaLlonal human rlghLs sLandards
relaLlng Lo Lhe effecLlve crlmlnallsaLlon of LorLure, and Lo faclllLaLe dlscusslons among dlfferenL
naLlonal sLakeholders ln order Lo ldenLlfy sulLable opLlons on how Lo lmplemenL Lhese sLandards ln
Lhe conLexL of Moldovan crlmlnal law. AcLlvlLles sLarLed wlLh experL workshops and conLlnued wlLh
advocacy meeLlngs, and Lhe coordlnaLlon of a clvll socleLy sLraLegy Lo promoLe Lhe adopLlon of Lhe
drafL amendmenLs LhroughouL Lhe formal leglslaLlve process. 1he conLlnulng engagemenL of Lhe
Legal 8esources CenLre from Moldova and Lhe lnsLlLuLe of enal 8eform ln domesLlc Worklng Croups
ln publlc consulLaLlons ouLslde Lhe pro[ecL acLlvlLles provlded addlLlonal lmporLanL opporLunlLles Lo
promoLe and follow-up Lhe legal reform process.

Act|v|t|es and kesu|ts


42
AcLlon lan (fooLnoLe 6), Speclflc lnLervenLlon Area 6.4.3. "LffecLlve combaLlng acLs of LorLure and lll-LreaLmenL", AcLlon
no 4.
18


1he lnlLlal momenLum for Lhe elaboraLlon of drafL amendmenLs Lo Lhe CC8M relaLlng Lo Lhe
crlmlnallsaLlon of LorLure was creaLed ln Lhe LhemaLlc Worklng Croup durlng Lhe ALlas of 1orLure
klck-Cff Conference ln november 2011. 1here, experLs from clvll socleLy, Lhe anLl-LorLure prosecuLors
and Lhe MC! dld noL only ldenLlfy ln deLall exlsLlng legal gaps and obsLacles Lo effecLlvely flghLlng
lmpunlLy, buL already sLarLed dlscusslng concreLe proposals for amendlng Lhe CC8M. 1he parLlclpanLs
called for, !"#$% '(!', lncreaslng Lhe penalLles for Lhe crlme of LorLure, excludlng Lhe sLaLuLe of
llmlLaLlons, removlng all overlaps and conLradlcLlons wlLh oLher crlmes, lnLroduclng new aggravaLlng
clrcumsLances as quallflcaLlons of newly drafLed offences of LorLure and cruel, lnhuman or degradlng
LreaLmenL, conslderlng addlLlonal sancLlons, such as Lhe prohlblLlon Lo hold publlc offlces, and
changlng Lhe sysLemaLlc placemenL of Lhe prohlblLlon of LorLure wlLhln Lhe CC8M Lo emphaslse lLs
serlousness.
43
1he ALlas of 1orLure pro[ecL was requesLed by parLlclpanLs aL Lhe Conference Lo
faclllLaLe a second experL workshop, durlng whlch comparaLlve examples from oLher counLrles could
be presenLed and Lhe open lssues relaLlng Lo Lhe drafL amendmenLs of Lhe CC8M furLher dlscussed.

1he second Workshop Look place ln !anuary 2012 ln cooperaLlon wlLh unu, whlch was
lmplemenLlng Lhe Lu funded pro[ecL on SLrengLhenlng Lhe forenslc examlnaLlon of LorLure and
oLher forms of lll-LreaLmenL ln Moldova"
44
. 1hls pro[ecL lncluded Lhe developmenL of relevanL
amendmenLs Lo Lhe CC8M Lo sLrengLhen legal safeguards agalnsL LorLure and lll-LreaLmenL. 1he
cooperaLlon enhanced Lhe synergles beLween Lhe worklng resulLs of boLh pro[ecLs and concenLraLed
Lhe resources of local sLakeholders ln llghL of Lhe mulLlple parallel reform lnlLlaLlve ln Lhe counLry.
1he [olnL workshop gaLhered many of Lhe same local experLs from clvll socleLy, academla, pracLlclng
lawyers, [udges, and prosecuLors of Lhe AnLl-1orLure unlL, who had parLlclpaLed ln Lhe klck-Cff
Conference. WlLh reference Lo Lhe relevanL lnLernaLlonal sLandards and recommendaLlons, Lhe ALlas
of 1orLure Leam provlded comparaLlve experLlse on Lhe crlmlnallzaLlon of LorLure and lll-LreaLmenL ln
oLher Luropean counLrles lncludlng on Lhe sysLemaLlc placemenL of Lhe crlme of LorLure ln dlfferenL
naLlonal Crlmlnal Codes, Lhe level of punlshmenL, Lhe abollLlon of Lhe lawful sancLlons clause, Lhe
caLegorles of perpeLraLors, Lhe lnappllcablllLy of sLaLues of llmlLaLlons and Lhe suspenslon/dlsmlssal
of perpeLraLors durlng crlmlnal proceedlngs/upon convlcLlon.

8ased on Lhe dlscusslons and agreemenLs reached among parLlclpanLs aL Lhe Workshop, a drafL
proposal for amendlng Lhe CC8M was elaboraLed by Lhe ALlas of 1orLure Leam and several Moldovan
legal experLs. 1he drafL amendmenLs lncluded Lhe proposal of a new ArLlcle 166
1
wlLh Lhe followlng
elemenLs changed ln comparlson wlLh exlsLlng ArLlcle 309
1
:
AbollLlon of Lhe "lawful sancLlon clause",
lncluslon of a separaLe paragraph deflnlng and crlmlnallslng cruel, lnhuman and degradlng
LreaLmenL,
Addlng addlLlonal aggravaLlng clrcumsLances for LorLure and oLher forms of lll-LreaLmenL,
8alslng Lhe level of punlshmenL ln form of a prlson senLence for LorLure (6-10 years, resp. 8-
13 under aggravaLlng clrcumsLances) and cruel, lnhuman or degradlng LreaLmenL (2-6 years,
resp. 3-8 years under aggravaLlng clrcumsLances), classlfylng LorLure as a serlous crlme,
llnanclal punlshmenLs of up Lo 1.000 convenLlonal unlLs for cruel, lnhuman or degradlng
LreaLmenL, ln addlLlon Lo a mandaLory prlson senLences,
MandaLory deprlvaLlon of Lhe rlghL Lo hold publlc offlces for perlods beLween 3 and 13
dependlng on Lhe caLegory and gravlLy of Lhe crlme as a slgn of zero-Lolerance Lowards such
acLs,
lncluslon of "de facLo" auLhorlLles among Lhe caLegorles of perpeLraLors
43
.

43
See ower olnL resenLaLlon on Lhe resulLs of worklng group 2 of Lhe Cpenlng Conference ln november 2011 avallable
aL www.aLlas-of-LorLure.org.
44
lor more lnformaLlon on Lhe unu pro[ecL, see hLLp://www.undp.md/pro[ecLs/lorenslc.shLml.
43
1hls proposal was deemed relevanL by Lhe experLs wlLh vlew Lo Lhe facL LhaL LorLure and lll-LreaLmenL remalned a
wldespread phenomenon ln Lhe 1ransnlsLrlan reglon of Lhe 8epubllc of Moldova.
19


As a consequence of Lhe classlflcaLlon of LorLure as a serlous crlme, Lhe drafL amendmenLs proposed
Lo place Lhe new ArLlcle ln ChapLer lll of Lhe CC8M, LlLled "Crlmes agalnsL lreedom, Ponour and
ulgnlLy of Lhe erson" Lo reflecL Lhe parLlcular grave naLure of Lhe crlme of LorLure, slmllar Lo oLher
crlmes conLalned ln Lhls secLlon llke slavery (ArLlcle 167) or Lrafflcklng ln human belng (ArLlcle 163).
lurLhermore, Lo pay LrlbuLe Lo Lhe recognlLlon of Lhe parLlcular grave naLure of Lhe crlme of LorLure,
several amendmenLs Lo Lhe Ceneral arL of Lhe CC8M were proposed, lncludlng: 1he excluslon of Lhe
appllcaLlon of sLaLuLes of llmlLaLlons Lo new ArLlcle 166
1
(ArLlcle 60), Lhe posslblllLy Lo exLend Lhe
perlod of dlsmlssal from publlc funcLlons accordlng Lo Lhe serlousness of Lhe crlme (ArLlcle 63), Lhe
excluslon of Lhe appllcaLlon of more lenlenL senLences for crlmes falllng under new ArLlcle 166
1

(ArLlcle 79), and Lhe excluslon of Lhe appllcaLlon of amnesLles (ArLlcle 107) and pardons (ArLlcle 108)
for crlme falllng under new ArLlcle 166
1
. ln addlLlon, changes were proposed Lo several oLher
provlslons ln Lhe CC8M Lo remove conLradlcLlons and overlap beLween Lhe crlme of LorLure and
oLher offences
46
.
1he proposed drafL amendmenLs were accompanled by an explanaLory noLe, summarlzlng Lhe resulLs
of dlscusslons and llne of argumenL Lo subsLanLlaLe Lhe proposal. 1he ALlas of 1orLure Leam
LransmlLLed boLh documenLs Lo Lhe MC! ln March 2012 for conslderaLlon ln Lhe leglslaLlve reform
process.
47

1he subsLanLlve work on Lhe drafL amendmenLs was followed by successlve acLlvlLles Lo promoLe Lhe
endorsemenL of Lhe proposed changes by Lhe Moldovan CovernmenL and monlLor Lhe ouLcome of
publlc consulLaLlons and debaLes ln Lhe arllamenL. Several meeLlngs Look place wlLh Lhe MC!, whlch
poslLlvely endorsed Lhe proposal. ln addlLlon, Lhe pro[ecL Leam meL wlLh arllamenLarlans slLLlng ln
Lhe Puman 8lghLs and Legal CommlLLee Lo ralse awareness on Lhe proposed changes, Lhe
parLlclpaLory process of elaboraLlon and Lhe underlylng [usLlflcaLlons.
SubsequenLly, an advocacy sLraLegy and acLlon plan were developed wlLh represenLaLlves of seven
nCCs, who had parLlclpaLed ln Lhe elaboraLlon of Lhe drafL amendmenLs. 1he parLlclpanLs agreed Lo
publlsh a [olnL supporL leLLer advocaLlng for Lhe adopLlon of Lhe proposed amendmenLs as soon as
Lhe offlclal mlnlsLerlal verslon was senL for publlc consulLaLlons. ln parallel, clvll socleLy
represenLaLlves pledged Lo promoLe Lhe legal reform ln Lhelr capaclLles as members of naLlonal
worklng groups and durlng relevanL publlc evenLs, such as ln Lhe conLexL of Lhe global anLl-LorLure
day ln !une 2012.
48

8ased on Lhe advocacy sLraLegy, Lhe ALlas of 1orLure Leam wldely shared Lhe proposed legal
amendmenLs and accompanylng explanaLory noLe wlLh relevanL sLakeholders. 1hroughouL Lhe
summer of 2012, Lhe Lwo local olnLs acLlvely parLlclpaLed ln Lhe offlclal Worklng Croup aL Lhe MC!
and Lhereby ensured LhaL Lhe orlglnal lnLenLlon of Lhe proposal developed wlLhln Lhe ALlas of 1orLure
pro[ecL could be conveyed ln Lhe offlclal dlscusslons. 1he local olnLs conLlnued Lo monlLor Lhe
reacLlons of Lhe dlfferenL lnsLlLuLlons and sLakeholders, coordlnaLed Lhe Lransmlsslon of a supporL
leLLer ln !une 2012 and promoLed Lhe accepLance of Lhe drafL legal amendmenLs Lhrough
consulLaLlons wlLh represenLaLlves of Lhe relevanL arllamenLary CommlLLees. As early as CcLober
2012, Lhe legal amendmenLs passed Lhe Moldovan arllamenL ln a flrsL readlng and were flnally
adopLed on 8 november 2012 by law no. 1943.

46
ArLlcles of Lhe CC8M Lo whlch amendmenLs were proposed were: ArLlcle 131 (lnLenLlonal severe bodlly ln[ury or damage
Lo healLh), ArLlcle 132 (lnLenLlonal less severe bodlly ln[ury or damage Lo healLh), ArLlcle 163 (Lrafflcklng ln human belngs),
ArLlcle 171 (rape), ArLlcle 172 (vlolenL acLlons of sexual naLure), ArLlcle 188 (burglary), ArLlcle 189 (blackmall), ArLlcle 309
(coerclon Lo LesLlfy), ArLlcle 328 (excess of power or offlclal auLhorlLy).
47
1he LexL of Lhe proposed amendmenLs and explanaLory noLe ls avallable aL www.aLlas-of-LorLure.org.
48
See e.g. Lhe publlc evenL organlzed by Lhe Legal 8esources CenLre form Moldova, AmnesLy lnLernaLlonal Moldova and
C8LuC on 26 !une 2012, more lnformaLlon avallable aL hLLp://www.amnesLy.md/ru/medla/ong-url-lmpunlLaLea-o-culLura-
lncura[aLa-de-[usLlLla-dln-rm/.
20


Compared Lo Lhe orlglnal proposal developed ln Lhe framework of Lhe ALlas of 1orLure pro[ecL, only
very few changes had been made ln Lhe mlnlsLerlal drafL senL for adopLlon by arllamenL.
49
Powever,
durlng Lhe arllamenLary readlngs, a small buL very slgnlflcanL change was lnLroduced ln comparlson
Lo Lhe mlnlsLerlal proposal: ln relaLlon Lo Lhe senLenclng for cruel, lnhuman and degradlng LreaLmenL,
Lhe drafL proposal developed wlLhln Lhe ALlas of 1orLure pro[ecL foresaw mandaLory prlson senLences
'"0 Lhe lmposlLlon of a flne (/2-2('#!3$ +'"/#!1"+). 1he same formulaLlon was conLalned ln Lhe
mlnlsLerlal drafL. Powever, Lhe flnal verslon of ArLlcle 166
1
para (1) and (2) CC8M as amended by Lhe
Moldovan arllamenL conLalns lmprlsonmenL and moneLary sancLlons as '(#$%"'#!3$ +'"/#!1"+. 1he
proLocols of Lhe parllamenLary readlngs lack any menLlonlng or [usLlflcaLlon of Lhls change. ln Lhe
conLrary, all sLaLemenLs made by relevanL acLors prlor Lo Lhe adopLlon ln arllamenL seemed Lo
suggesL LhaL no changes were Lo be expecLed. AL Lhe Llme of wrlLlng Lhls reporL, lL remalned unclear,
wheLher Lhe change from Lhe word "and" Lo Lhe word "or" ln adopLed ArLlcle 166
1
para (1) and (2)
was an edlLorlal mlsLake or dellberaLely chosen Lo reduce Lhe level of crlmlnal accounLablllLy ln cases
of cruel, lnhuman or degradlng LreaLmenL.
As a resulL of Lhls small buL slgnlflcanL change ln wordlng, even serlous forms of lll-LreaLmenL under
aggravaLlng clrcumsLances (e.g. leadlng Lo bodlly ln[ury) can be sub[ecL Lo a mere flne. 1he adopLed
formulaLlon, unforLunaLely, provldes for Lhe posslblllLy Lo apply even more lenlenL senLences Lhan
former ArLlcles 328 para (2) Crlmlnal Code and ls Lherefore a regresslon noL an lmprovemenL from
Lhe polnL of vlew of flghLlng lmpunlLy. Moreover, one of Lhe deflclencles ldenLlfled by Lhe anLl-
LorLure prosecuLors ln Lhe old legal framework was Lhe lack of effecLlve crlmlnallsaLlon of lll-
LreaLmenL below Lhe Lhreshold of LorLure. 1he changes made durlng Lhe parllamenLary readlng are
Lherefore noL only ln dlrecL conLravenLlon Lo Lhe splrlL, ln whlch Lhe drafL amendmenLs had been
formulaLed, buL also slgnlflcanLly reduce Lhe lmpacL of Lhe new legal provlslons ln Lhe CC8M on Lhe
flghL agalnsL lmpunlLy.

3.2.2. romot|ng further procedura| and |nst|tut|ona| reform of the ant|-torture
prosecutors

Intervent|on Log|c

1he lack of lndependenL and effecLlve lnvesLlgaLlon and prosecuLlon lnLo allegaLlons of LorLure and
lll-LreaLmenL was ldenLlfled as Lhe second mosL lmporLanL obsLacle Lo lmprovlng Lhe slLuaLlon of
LorLure and lll-LreaLmenL ln Lhe 8epubllc of Moldova. 1he unS81 and oLher lnLernaLlonal and reglonal
LorLure monlLorlng bodles had Lherefore repeaLedly recommended Lhe esLabllshmenL of a separaLe
lnvesLlgaLlon mechanlsm lndependenL from Lhe law enforcemenL and Lhe prosecuLlon servlces.
AlLhough Lhe creaLlon of Lhe AnLl-1orLure unlL aL Lhe CC and Lhe speclallsed anLl-LorLure
prosecuLors ln Lhe reglon were an lmporLanL lmprovemenL, Lhls new sysLem faced several obsLacles
relaLlng Lo lndependence, effecLlveness of Lhe lnsLlLuLlonal seL-up and operaLlonal capaclLy (for
deLalls see ChapLer 2).

Powever, based on Lhe lnformaLlon recelved durlng Lhe assessmenL vlslL and subsequenL dlscusslons
wlLh dlfferenL sLakeholders, Lhe recommendaLlons Lo creaLe a compleLely lndependenL mechanlsm
for Lhe lnvesLlgaLlon of allegaLlons of LorLure was conLesLed by many sLakeholders as belng noL a
reallsLlc opLlon: llrsL of all, Lhe sysLem of anLl-LorLure prosecuLors had only become operaLlonal ln
Lhe course of 2011 and lL was Loo early Lo assess Lhelr effecLlveness. ln addlLlon, Lhe pollLlcal
commlLmenL for such a reform sLep was noL apparenL and lack of flnanclal resources was regularly
puL forward by Lhe auLhorlLles as maln lmpedlmenL Lo comply wlLh Lhe lnLernaLlonal
recommendaLlon.


49
1hese changes concerned Lhe excluslon of negllgence from Lhe deflnlLlon of cruel, lnhuman and degradlng LreaLmenL ln
ArLlcle 166
1
para. 1 and Lhe re-lnserLlon of Lhe posslblllLy Lo apply pardons Lo crlmes of LorLure.
21


Powever, Lhe naLlonal AcLlon lan for Lhe lmplemenLaLlon of Lhe !usLlce SecLor 8eform SLraLegy
foresaw for Lhe year 2012 a revlslon of Lhe regulaLory framework of Lhe prosecuLlon servlces ln order
Lo ensure dlrecL subordlnaLlon of Lhe speclallsed reglonal anLl-LorLure prosecuLors under Lhe Ceneral
rosecuLor.
30
1he ALlas of 1orLure Leam Lherefore declded Lo seek Lhe cooperaLlon of Lhe AnLl-
1orLure unlL aL Lhe CC, whose members were hlghly moLlvaLed and lnLeresLed Lo lmprove Lhe
effecLlveness of Lhelr lnsLlLuLlon. 8ased on a cooperaLlon agreemenL reached wlLh Lhe head of Lhe
unlL, acLlvlLles were developed LhaL lncluded Lhe faclllLaLlon of exchange on lnsLlLuLlonal reform
opLlons and Lhe fundlng and coordlnaLlon of Lhe developmenL of meLhodologlcal Lools. As key
sLakeholders ln Lhls fleld, Lhe anLl-LorLure prosecuLors were also promlnenLly engaged ln all oLher
acLlvlLles relaLlng Lo developlng of drafL amendmenLs Lo Lhe CC8M Code (see above) and Lhe
promoLlon of sLronger lnLernal accounLablllLy mechanlsm (see below). 1he acLlvlLles descrlbed ln Lhls
secLlon were deslgned so as Lo complemenL oLher pro[ecL acLlvlLles relaLlng Lo Lhe flghL agalnsL
lmpunlLy.

Act|v|t|es and kesu|ts

uurlng Lhe ALlas of 1orLure klck-Cff Conference, parLlclpanLs ln Lhe LhemaLlc Worklng Croup on
effecLlve lnvesLlgaLlons and prosecuLlon of LorLure and lll-LreaLmenL developed several
recommendaLlons. ln parLlcular, lL was recommended Lo elaboraLe dlfferenL lnsLlLuLlonal opLlons for
Lhe esLabllshmenL of an lndependenL mechanlsm responslble for Lhe lnvesLlgaLlon and prosecuLlon of
LorLure cases, equlpped wlLh operaLlonal lnvesLlgaLors dlrecLly subordlnaLed Lo LhaL enLlLy. ln vlew of
Lhe exlsLlng sysLem of anLl-LorLure prosecuLors, an evaluaLlon of Lhelr performance Lo daLe was
deemed necessary followed by Lhe adopLlon of clear lnLernal regulaLlons on Lhe worklng procedures
by order of Lhe Ceneral rosecuLor. ln addlLlon, Lhe developmenL of meLhodologlcal
recommendaLlons and currlcular for ln-servlce Lralnlngs on Lhe effecLlve lnvesLlgaLlon of complalnLs
was recommended as well as mandaLlng Lhe anLl-LorLure prosecuLors wlLh Lhe compeLence Lo order
effecLlve vlcLlm and wlLness proLecLlon measures.

8ased on Lhese ouLpuLs of Lhe Conference and Lhe deflclencles ldenLlfled ln Lhe assessmenL reporL,
Lhe ALlas of 1orLure Leam dlscussed Lhe reform needs and prlorlLles of Lhe AnLl-1orLure unlL aL Lhe
CC for 2012 durlng a round Lable ln !anuary 2012 wlLh members of Lhe unlL and Lhe Lu Plgh Level
ollcy Advlsor Lo Lhe Ceneral rosecuLor. 1he head of Lhe unlL emphaslsed Lhe need for flnanclal and
lnfrasLrucLure-relaLed supporL as well as Lhe resLrucLurlng of Lhe sysLem of anLl-LorLure prosecuLors
lncludlng Lhe asslgnmenL of operaLlonal sLaff. Pe noLed, however, LhaL changlng Lhe lnsLlLuLlonal seL
up of hls unlL would requlre hlgh-level pollLlcal commlLmenL Lo lnsLlLuLlonal reform of Lhe
prosecuLlon servlces and depend on Lhe pollLlcal bargalnlng process ln Lhe conLexL of Lhe overall
[usLlce secLor reform
31
.

8ased on Lhese conslderaLlons, a cooperaLlon agreemenL was reached beLween Lhe pro[ecL and Lhe
AnLl-1orLure unlL Lo faclllLaLe by means of an LxperL Conference Lhe developmenL of vlable opLlons
for Lhe esLabllshmenL of a more lndependenL and effecLlve lnvesLlgaLlon and prosecuLlon
mechanlsm. lL was expecLed LhaL such opLlons could be useful for naLlonal sLakeholders ln furLher
promoLlng Lhe lnsLlLuLlonal reform process of Lhe prosecuLlon servlce ln Lhe fuLure. 1he agreemenL
also lncluded addresslng Lhe procedural obsLacles faced ln pracLlce ln Lhe cooperaLlon beLween Lhe
anLl-LorLure prosecuLors and Lhe lnLernal lnvesLlgaLlon mechanlsms aL Lhe MlnlsLry of lnLernal Affalrs
and MlnlsLry of !usLlce. ln addlLlon - sub[ecL Lo Lhe successful adopLlon of amendmenLs Lo Lhe
Crlmlnal Code and Crlmlnal rocedure Codes - Lhe developmenL of meLhodologlcal recommendaLlons

30
AcLlon lan (fooLnoLe 6), Speclflc lnLervenLlon Area 4.6.3, AcLlon no. 4 foresees: uevelop Lhe drafL amendlng Lhe
regulaLory framework for Lhe dlrecL subordlnaLlon Lo Lhe Ceneral rosecuLor's anLl-LorLure prosecuLors.
31
1he quesLlon of Lhe lnsLlLuLlonal allocaLlon of crlmlnal lnvesLlgaLors was a maln Loplc ln Lhe [usLlce secLor reform
dlscusslons ln general and sub[ecL Lo pollLlcal debaLes and power sLruggles beLween Lhe CC, MC! and MlA. lL was deemed
unreallsLlc Lo expecL LhaL a pollLlcal agreemenL could be reached on Lhls Loplc LhroughouL Lhe Llme-span of Lhe pro[ecL
lmplemenLaLlon.
22


was envlsaged Lo supporL Lhe appllcaLlon of Lhe amended Codes ln Lhe pracLlce of Lhe anLl-LorLure
prosecuLors.

4$3$(1,!"* 1,#!1"+ .1% #5$ !"+#!#2#!1"'( '"0 ,%1/$02%'( %$.1%- 1. #5$ '"#!6#1%#2%$ ,%1+$/2#1%+

1he Llmlng of Lhe LxperL Conference on SLrengLhenlng Lhe lnsLlLuLlonal lramework of lnvesLlgaLlon
and rosecuLlon of AllegaLlons of 1orLure and lll-1reaLmenL" was sLraLeglcally seL for SepLember
2012. 8y LhaL Llme, Lhe developmenL of Lhe drafL amendmenLs Lo Lhe CC8M had been flnallsed and
Lhe ALlas of 1orLure pro[ecL had esLabllshed a sound basls for cooperaLlon wlLh relevanL local acLors.
Several acLlvlLles had already provlded opporLunlLles for sLakeholders from dlfferenL and someLlmes
compeLlng lnsLlLuLlons Lo meeL and dlscuss Lhelr respecLlve polnL of vlew ln relaLlon Lo Lhe maln
obsLacles ln Lhe flghL agalnsL lmpunlLy. Moreover, Lhe AnLl-1orLure unlL aL Lhe CC dlsposed of flrsL
resulLs of Lhelr lnLernal evaluaLlon, whlch allowed for a more subsLanLlaLed dlscusslon on Lhe relaLlve
sLrengLhs and weaknesses of Lhe exlsLlng sLrucLure. Slnce Lhe auLhorlLles were obllged by Lhe
naLlonal AcLlon lan Lo embark on a drafL amendmenL Lo Lhe regulaLory framework for Lhe anLl-
LorLure prosecuLors by Lhe end of 2012, lL was expecLed LhaL Lhe conference could generaLe a
momenLum for change and produce useful subsLanLlve recommendaLlons.

AgalnsL Lhls background, Lhe alm of Lhe conference was Lo offer a plaLform for dlscusslon and
exchange of experlences beLween naLlonal and lnLernaLlonal experLs on lnsLlLuLlonal and procedural
opLlons for furLher sLrengLhenlng Lhe framework of lnvesLlgaLlon and prosecuLlon of crlmes of
LorLure and lll-LreaLmenL ln Moldova. 1he maln beneflclarles of Lhe LxperL Conference were Lhe AnLl-
1orLure unlL aL Lhe CC, Lhe speclallsed anLl-LorLure prosecuLors ln Lhe reglon and sLakeholders
lnvolved ln Lhe [usLlce secLor reform. 1o allow for lncluslve consulLaLlons of hlgh quallLy, Lhe
conference reached ouL Lo a broad range of sLakeholders from boLh governmenLal and non-
governmenLal organlsaLlons and lnsLlLuLlons and Lhe lnLernaLlonal communlLy
32
. 1he ALlas of 1orLure
Leam provlded Lhe framework on relevanL Luropean sLandards on Lhe effecLlve lnvesLlgaLlon and
prosecuLlon of LorLure allegaLlons. SubsequenLly, Lhree lnLernaLlonal experLs were lnvlLed Lo glve
good pracLlce examples of lnvesLlgaLlon and prosecuLlon bodles: 1he flrsL body presenLed was Lhe
norweglan 8ureau of lnvesLlgaLlon of ollce Affalrs - an lndependenL lnsLlLuLlon equlpped wlLh full
prosecuLorlal powers and experlenced operaLlonal lnvesLlgaLors mandaLed Lo lnvesLlgaLe allegaLlons
agalnsL Lhe pollce and prosecuLlon servlces. lL was followed by a presenLaLlon of Lhe Speclallzed
rosecuLlon ueparLmenL ln Slovenla, an lndependenL unlL of Lhe Speclallsed SLaLe rosecuLor's Cfflce
ln Slovenla, equlpped wlLh operaLlonal lnvesLlgaLors and mandaLed Lo lnvesLlgaLe crlmes commlLLed
by law enforcemenL agenLs on Lhe enLlre LerrlLory. 1he Lhlrd model presenLed was Lhe lndependenL
ollce ComplalnLs Commlsslon ln Lhe unlLed klngdom, whlch has lnvesLlgaLors who en[oy full search,
selzure and arresL powers, buL have no prosecuLorlal compeLences.

1he comparaLlve lnpuL from Lhe pracLlce of oLher Luropean counLrles seL Lhe sLage for lnLenslve
consulLaLlons ln small 2-half-day LhemaLlc worklng groups, based on problem-orlenLed guldlng
quesLlons on Lhe followlng Loplcs
33
: 1) SLrengLhenlng lndependence and lmparLlallLy: lnsLlLuLlonal
locallsaLlon of lnvesLlgaLlon and prosecuLlon bodles wlLhln Lhe Moldovan crlmlnal [usLlce sysLem, 2)
CompeLences and effecLlve worklng procedures for full and Llmely esLabllshmenL of facLs and
efflclenL case managemenL and overslghL, 3) 8esources, skllls and capaclLles necessary for Lhorough
lnvesLlgaLlons, and 4) rocedural safeguard Lo ensure vlcLlm lnvolvemenL and proLecLlon,
Lransparency and publlc overslghL. ln a soluLlon orlenLed manner, Lhe LhemaLlc groups were

32
Among Lhe parLlclpanLs aL Lhe LxperL Conference were lnvesLlgaLlve [udges from dlfferenL dlsLrlcL courLs, represenLaLlves
of Lhe CenLre for lorenslc Medlclne, Lhe Moldovan CenLre for Puman 8lghLs, Lhe law deparLmenL of Lhe Moldova SLaLe
unlverslLy, lawyers and publlc defenders, human rlghLs organlsaLlons as well as represenLaLlves of Lhe MlnlsLrles of lorelgn
Affalrs, MlA, MC!,, unu, Lu uelegaLlon, CSCL Mlsslon Lo Moldova, Councll of Lurope, nC8LAM, A8A 8CLl, uS Lmbassy
and oLher represenLaLlves of lnLernaLlonal organlsaLlons.
33
lor deLalls see "ConcepL noLe of Lhe lmpunlLy Conference, 20-21 SepLember 2012", avallable aL www.aLlas-of-LorLure.org.
23


requesLed Lo draw up ouLcome Lables wlLh Lhe ldenLlfled challenges, proposed soluLlons and
necessary nexL sLeps.

Cne of Lhe maln polnLs of dlscusslons was wheLher Lhe esLabllshmenL of a new lnvesLlgaLlon and
prosecuLlon mechanlsm separaLe from Lhe law enforcemenL servlces (slmllar Lo Lhe norweglan or
8rlLlsh model) consLlLuLed a vlable opLlon aL Lhls polnL ln Llme ln Lhe Moldovan conLexL. 1hough mosL
parLlclpanLs were ln prlnclple ln favour of such a soluLlon as lL would carry Lhe hlghesL chance of
belng percelved as fully lndependenL, Lhls opLlon was noL consldered reallsLlc due Lo flnanclal
resLralnLs and pollLlcal relucLance Lo creaLe new lnsLlLuLlons. Several oLher opLlons for mandaLlng
exlsLlng lnsLlLuLlons (such as Lhe mlllLary prosecuLors or Lhe CenLre for CombaLlng Lconomlc Crlmes)
wlLh Lhe lnvesLlgaLlon of LorLure allegaLlons were consldered less sulLable Lhan sLrengLhenlng Lhe
exlsLlng AnLl-1orLure unlL aL Lhe CC, parLlcularly enhanclng Lhe unlL's lndependence and
operaLlonal effecLlveness. 1o achleve Lhls alm, slgnlflcanL changes Lo Lhe exlsLlng organlzaLlonal and
procedural framework were deemed necessary and deLalled recommendaLlons were developed Lo
Lhls effecL.

MosL lmporLanLly, Lhe flnal Conference CuLcome uocumenL
34
called for Lhe dlssoluLlon of Lhe sysLem
of speclallzed reglonal anLl-LorLure prosecuLors and lnsLead Lhe enlargemenL of Lhe sLaff of Lhe AnLl-
1orLure unlL aL Lhe CC. 1hls cenLrallzaLlon aL Lhe CC was proposed ln order Lo lnhlblL Lhe
occurrence of confllcLs of lnLeresLs and accompanylng lack of lndependence due Lo Lhe dlrecL sub-
ordlnaLlon of reglonal prosecuLors Lo Lhe rayon prosecuLlon servlces, whlch had damaged Lhe
repuLaLlon of Lhe speclallzed anLl-LorLure prosecuLors ln Lhe reglons. Moreover, Lhe employmenL
procedure aL Lhe CC should be based on a publlc announcemenL and LransparenL crlLerla Lo ensure
necessary professlonal quallLles and personal lndependence of candldaLes. Slnce Lhe publlc
percepLlon of Lhe professlonallsm and lmparLlallLy of Lhe AnLl-1orLure unlL was poslLlve, Lhe
proposed reform was expecLed Lo enhance publlc LrusL ln Lhe wllllngness of Lhe auLhorlLles Lo
effecLlvely combaL lmpunlLy. As a consequence, Lhe unlL should be mandaLed wlLh Lhe excluslve
compeLence for Lhe lnvesLlgaLlon of allegaLlon of LorLure, lll-LreaLmenL and relaLed offences (e.g.
abuse of power) coverlng Lhe enLlre LerrlLory of Lhe 8epubllc of Moldova. 1o LhaL effecL, an
organlzaLlonal sLrucLure ensurlng reglonal coverage should be developed (e.g. by creaLlng separaLe
reglonal offlces) and effecLlve procedures esLabllshed Lo ensure coordlnaLlon wlLh oLher
organlzaLlonal unlLs of Lhe prosecuLlon servlces.

1he second mosL lmporLanL recommendaLlon concerned Lhe need Lo provlde Lhe anLl-LorLure
prosecuLors wlLh operaLlonal sLaff (lnvesLlgaLors, forenslc experLs, psychologlsLs eLc.) dlsposlng of Lhe
necessary experLlse for Lhoroughly lnvesLlgaLlng LorLure cases. Whlle several opLlons were dlscussed
ln Lhls respecL (e.g. secondlng sLaff by Lhe MlA Lo Lhe CC), Lhe employmenL of operaLlonal sLaff by
Lhe CC was consldered Lo be Lhe only opLlon Lo ensure Lhelr lndependence from Lhe law
enforcemenL servlces. Powever, parLlclpanLs acknowledged LhaL Lhls opLlon would requlre addlLlonal
flnanclal resources aL Lhe CC and Lhe CuLcome uocumenL Lherefore called upon Lhe donor
communlLy Lo conslder supporLlng such a reform process flnanclally.

CLher recommendaLlons consldered lndlspensable for more effecLlvely flghLlng lmpunlLy called for
Lhe developmenL of meLhodologlcal recommendaLlons for anLl-LorLure prosecuLors and operaLlonal
sLaff and Lhe regular provlslon of mulLl-dlsclpllnary Lralnlngs on Lhe lsLanbul roLocol and oLher
relevanL Lechnlcal sLandards for appllcable Lo Lhe lnvesLlgaLlon of LorLure cases. Moreover, Lhe
revlslon of Lhe CC8M wlLh vlew Lo sLrengLhenlng and proLecLlng Lhe poslLlon of vlcLlms of LorLure ln
crlmlnal proceedlngs (more effecLlve appeals procedures, enlargemenL of legal lnsLrumenLs Lo
proLecL vlcLlms and wlLnesses) was recommended, and Lhe necesslLy Lo Lransfer Lhe auLhorlLy over
medlcal personnel Lo Lhe MlnlsLry of PealLh Lhrough amendmenLs Lo Lhe LxecuLlon Code suggesLed.

34
Avallable aL www.aLlas-of-LorLure.org.
24


llnally, lncreaslng Lransparency of Lhe acLlvlLles of Lhe anLl-LorLure prosecuLors was consldered
cruclal Lo lncrease publlc confldence ln Lhls mechanlsm.

As a resulL of Lhe LxperL Conference, a broad range of sLakeholders had developed a Lhorough
undersLandlng of exlsLlng lnsLlLuLlonal, procedural and operaLlonal obsLacles Lo effecLlvely flghLlng
lmpunlLy and [olnLly produced a range of Lechnlcal opLlons for overcomlng Lhese obsLacles. 1he
ouLpuLs of Lhe conference were dlsLrlbuLed Lo Lhe responslble auLhorlLles and Lhe Lu uelegaLlon.
1hey are hoped Lo provlde a useful reference ln Lhe ongolng process of reform of Lhe prosecuLlon
servlces.
33


7$#5101(1*!/'( %$/1--$"0'#!1"+ .1% '"#!6#1%#2%$ ,%1+$/2#1%+

As a follow-up Lo Lhe developmenL of drafL amendmenLs Lo Lhe CC8M wlLh newly deflned crlmes of
LorLure and lll-LreaLmenL, Lhe ALlas of 1orLure Leam lnlLlaLed Lhe elaboraLlon of deLalled
meLhodologlcal recommendaLlons for Lhe lnvesLlgaLlon and prosecuLlon of complalnLs alleglng
LorLure or oLher forms of lll-LreaLmenL. 1hls acLlvlLy was meanL Lo supporL Lhe appllcaLlon of Lhe
revlsed legal framework agalnsL lmpunlLy ln pracLlce. 1he drafLlng process could Lherefore only be
commenced Lowards Lhe end of Lhe pro[ecL lmplemenLaLlon followlng Lhe adopLlon of Lhe proposed
amendmenLs Lo Lhe CC8M by Lhe Moldovan arllamenL ln november 2012.

uurlng Lhe flnal pro[ecL vlslL ln !anuary 2013, Lhe conLenL and sLrucLure of Lhe meLhodologlcal
recommendaLlons was dlscussed and flnallsed ln a worklng meeLlng wlLh Lhe AnLl-1orLure unlL aL Lhe
CC. 1he head of Lhe unlL expressed hls commlLmenL Lo promoLe Lhe adopLlon of Lhe documenL as
lnLernal regulaLlons Lo be applled by all prosecuLors lnvesLlgaLlng and prosecuLlng LorLure cases. lL
was agreed LhaL Lhe documenL would conLaln references Lo lnLernaLlonal and Luropean human rlghLs
sLandards on Lhe classlflcaLlon of LorLure and lll-LreaLmenL, an lnLerpreLaLlve commenLary on Lhe new
CC8M provlslons, a secLlon on procedural safeguards durlng lnvesLlgaLlons, lncludlng vlcLlm and
wlLness proLecLlon measures and a deLalled regulaLlon of Lhe procedural duLles of anLl-LorLure
prosecuLors durlng Lhe prellmlnary lnvesLlgaLlon sLage, durlng Lhe crlmlnal lnvesLlgaLlons and durlng
courL proceedlngs.

1he recommendaLlons were produced by a mulLl-dlsclpllnary experL Leam, composed of Lwo
academlc experLs ln Moldovan crlmlnal law, an experL ln forenslc examlnaLlons and psychlaLry, a
naLlonal [udge, and Lhe anLl-LorLure prosecuLors Lhemselves. lnpuL on lnLernaLlonal human rlghLs
sLandards and [urlsprudence was provlded by Lhe ALlas of 1orLure Leam. Several rounds of revlews
were carrled ouL and coordlnaLed by Lhe Legal 8esources CenLre from Moldova Lo ensure
conslsLency, accuraLeness and quallLy of Lhe flnal documenL. ln uecember 2013, Lhe flnal verslon of
Lhe meLhodologlcal recommendaLlons was senL Lo Lhe Ceneral rosecuLor and by Crder of
30.12.2013, no. 76/8 Lhe documenL was offlclally approved and 200 coples of Lhe meLhodologlcal
recommendaLlons were prlnLed ln Lhe framework of Lhe ALlas of 1orLure pro[ecL and dlsLrlbuLed Lo
all concerned prosecuLors. As a resulL, Lhe recommendaLlons have Lo be applled as mandaLory
lnLernal framework for Lhe lnvesLlgaLlon and prosecuLlon of LorLure cases. 1he AnLl-1orLure unlL aL
Lhe CC wlll ln Lhe fuLure be responslble for supervlslng Lhe appllcaLlon of Lhe recommendaLlons.

33
1he elaboraLlon of a new charLer on Lhe lnLernal re-organlsaLlon of Lhe anLl-LorLure prosecuLors was posLponed ln 2013
pendlng dlscusslons on Lhe overall reform of Lhe prosecuLlon servlces. unforLunaLely, by Lhe Llme of wrlLlng Lhe reporL, Lhe
pollLlcal reform concepL and drafL law developed by Lhe offlclal Worklng Croup for Lhe reform of Lhe prosecuLlon servlces
have so far noL Laken up Lhe recommendaLlons developed aL Lhe LxperL Conference Lo address Lhe ldenLlfled lnsLlLuLlonal
deflclencles of Lhe anLl-LorLure prosecuLors (lack of lndependence and cenLrallzed managemenL and operaLlonal capaclLles),
ln parLlcular, Lhe local prosecuLors responslble for deallng wlLh LorLure cases are llkely Lo remaln procedurally sub-ordlnaLed
Lo Lhe rayon (dlsLrlcL) prosecuLors, for more lnformaLlon, see Lhe proLocol of Lhe Worklng Croup sesslon ln CcLober 2013
avallable aL hLLp://[usLlce.gov.md/publlc/flles/flle/reforma_secLorul_[usLlLlel/procese_verbale/proces-
verbal_08_ocLombrle_2013_pllon_vl.pdf, and Lhe ConcepL on 8eformlng Lhe rosecuLlon Servlces" avallable aL
hLLp://[usLlce.gov.md/llbvlew.php?l=ro&ldc=4&ld=1603.
23



3.2.3. romot|ng an |mproved re|at|onsh|p between cr|m|na| and d|sc|p||nary
accountab|||ty to effect|ve|y address the accountab|||ty gap

Intervent|on Log|c

ln addlLlon Lo flghLlng lmpunlLy Lhrough effecLlve crlmlnal sancLlons, lnLernal dlsclpllnary and
overslghL mechanlsm wlLhln law enforcemenL lnsLlLuLlons play a cruclal role ln enforclng professlonal
sLandards and good pracLlces, prevenLlng mlsconducL and faclllLaLlng Lhe managemenL of personnel
ln llne wlLh eLhlcal codes. Moreover, such mechanlsms are essenLlal Lo malnLalnlng publlc LrusL ln law
enforcemenL servlces. ln Moldova, Lhe weakness of exlsLlng lnLernal lnvesLlgaLlon and dlsclpllnary
procedures, boLh wlLhln Lhe MlA and Lhe enlLenLlary ueparLmenL had been ldenLlfled by Lhe ALlas
of 1orLure Leam as a facLor for decreaslng publlc confldence ln a genulne pollLlcal commlLmenL Lo a
zero-Lolerance pollcy agalnsL LorLure. AL Lhe same Llme, Lhe MlA was sLarLlng Lo engage lnLernally as
well as wlLh some lnLernaLlonal supporL ln organlzaLlonal reform dlscusslons
36
, and lL Lherefore
seemed Lo be a good momenL for seLLlng Lhe lssue of lnLernal accounLablllLy on Lhe reform agenda.
Slmllar slgns of openness Lo organlzaLlonal reform were noL percelved wlLh regard Lo Lhe
enlLenLlary ueparLmenL.

Powever, whlle recognlzlng Lhe lmporLance of Lhe lssue, Lhe ALlas of 1orLure pro[ecL could noL
reallsLlcally alm aL achlevlng susLalnable resulLs ln Lhe lnsLlLuLlonal reform process of Lhe law
enforcemenL lnsLlLuLlons due Lo Lhe llmlLed flnanclal scope and Llmeframe of Lhe pro[ecL. 1herefore,
Lhe ALlas of 1orLure Leam declded Lo llmlL lLs lnLervenLlon Lo agenda-seLLlng and promoLlng Lhe
engagemenL of oLher acLors on Lhls Loplc.

WlLhln Lhe MlA, Lhe represenLaLlves of dlfferenL deparLmenLs were lnlLlally cauLlous Lo dlscuss Lhe
pracLlce of lnLernal overslghL wlLh Lhe ALlas of 1orLure Leam and accuraLe lnformaLlon on sLaLlsLlcs
and procedures was noL accesslble. 1hrough several bllaLeral meeLlngs and LrusL bulldlng measures
by Lhe local olnLs, a cooperaLlon agreemenL wlLh Lhe head of Lhe ulSl could evenLually be reached
and acLlve engagemenL of Lhe sLaff of Lhe ulSl ln pro[ecL acLlvlLles ensured. 8ased on Lhls agreemenL,
LargeLed acLlvlLles were lmplemenLed wlLh a speclflc focus on Lhe lnLerface beLween crlmlnal and
dlsclpllnary procedures. ln parLlcular, Lhe acLlvlLles provlded opporLunlLles for exchange beLween Lhe
ulSl and Lhe anLl-LorLure prosecuLors on Lhose aspecLs, whlch lmpeded Lhe prompL and Lhorough
processlng and lnvesLlgaLlon of complalnLs agalnsL LorLure and lll-LreaLmenL.

Act|v|t|es and kesu|ts

uurlng Lhe ALlas of 1orLure klck-Cff-Conference, a separaLe worklng group composed of
represenLaLlves from Lhe ulSl, Lhe prosecuLlons servlces, lawyers and clvll socleLy represenLaLlves
dlscussed shorLcomlngs of Lhe lnLernal accounLablllLy mechanlsms and complalnLs procedures wlLhln
Lhe pollce, Lhe penlLenLlary sysLem and psychlaLrlc faclllLles. LxlsLlng pracLlcal lmpedlmenLs Lo
accesslng confldenLlal complalnLs procedures for persons ln deLenLlon (prlsons, psychlaLrlc hosplLals)
were ldenLlfled as a ma[or obsLacle Lo ln Lhe comprehenslve documenLlng and lnvesLlgaLlon of
complalnLs. 1he Worklng Croup Lherefore proposed lnLer alla Lo lnsLall a sysLem of complalnLs boxes
ln deLenLlon faclllLles, only Lo be opened by Lhe CmbudslnsLlLuLlon or a slmllar lndependenL body
mandaLed Lo recelve peLlLlons.

WlLh vlew Lo Lhe lnLernal processlng, follow-up and lnvesLlgaLlon of complalnLs wlLhln Lhe MlA, Lhe
dlscusslon revolved around Lhe lnvesLlgaLlve sLeps Laken by Lhe ulSl Lo esLabllsh wheLher a case
conLalned crlmlnal elemenLs and had Lo be LransmlLLed Lo Lhe prosecuLlon servlces, as well as Lhe
measures lmplemenLed ln cases, whlch dld noL provlde sufflclenL evldence or dld noL reach Lhe

36
See fooLnoLe 23 and 24.
26


Lhreshold Lo lncur lndlvldual crlmlnal llablllLy. 8epresenLaLlves from Lhe ulSl provlded lnformaLlon on
a planned resLrucLurlng of Lhelr deparLmenL Lo enhance lLs operaLlonal capaclLles - an lnlLlaLlve LhaL
was Lo be lnLegraLed lnLo Lhe overall reform of Lhe MlnlsLry and coordlnaLed by an lnLernal experL
group aL Lhe MlA.
37


1he dlscusslon ln Lhe worklng group also broughL Lo llghL serlous lmpedlmenLs Lo ensurlng
accounLablllLy, whlch were rooLed ln confllcLlng undersLandlngs of Lhe relaLlonshlp beLween lnLernal
lnvesLlgaLlons leadlng Lo dlsclpllnary sancLlons and Lhe crlmlnal lnvesLlgaLlons by Lhe prosecuLlon
servlces held by Lhe dlfferenL lnsLlLuLlons. As far as Lhe sLaff of Lhe ulSl was concerned, Lhey
lnLerpreLed Lhe exlsLlng legal and regulaLory framework ln such a way LhaL Lhe parallel lnsLlLuLlon of
crlmlnal and dlsclpllnary proceedlngs was legally lmposslble. Moreover, Lhe lnsLlLuLlon of dlsclpllnary
proceedlngs afLer Lhe flnallzaLlon of crlmlnal proceedlngs was undersLood as equally lmpeded by Lhe
prohlblLlon of double [eopardy and Lhe sLaLuLe of llmlLaLlons appllcable Lo dlsclpllnary lnvesLlgaLlons
and sancLlons. 8epresenLaLlves of Lhe ulSl suggesLed LhaL Lhelr acLlons depended on an express
lndlcaLlon by Lhe responslble prosecuLor upon closure or compleLlon of a flle requesLlng LhaL
dlsclpllnary sancLlons are applled. Powever, Lhe MlA sLaff complalned abouL a lack of communlcaLlon
and Llmely lnformaLlon abouL Lhe ouLcome of Lhe crlmlnal lnvesLlgaLlons. 1he prosecuLors on Lhe
oLher hand dld noL percelve Lhemselves Lo be responslble for recommendlng dlsclpllnary acLlons and
complalned abouL a lack of cooperaLlon by Lhe lnLernal lnvesLlgaLlon bodles. Cverall, a lack of
effecLlve communlcaLlon and lnformaLlon beLween Lhe Lwo auLhorlLles lnvolved ln followlng-up Lo
complalnLs and a cerLaln compeLlLlon over compeLences consLlLuLed a serlous obsLacle Lo holdlng
perpeLraLors accounLable.

lollowlng Lhe recommendaLlon by Lhe worklng group LhaL Lhese concerns relaLlng Lo Lhe lnLerface
beLween crlmlnal and dlsclpllnary procedures merlLed furLher dlscusslons beLween Lhe auLhorlLles
concerned, Lhe ALlas of 1orLure Leam lmplemenLed an LxperL Workshop ln Aprll 2012 LargeLlng
represenLaLlves of lnLernal lnvesLlgaLlon mechanlsm aL Lhe MlA and Lhe enlLenLlary ueparLmenL, as
well as anLl-LorLure prosecuLors. 8epresenLaLlves of clvll socleLy organlzaLlons and selecLed
represenLaLlve of Lhe lnLernaLlonal communlLy and donors, who Look an acLlve lnLeresL ln MlA-
relaLed reforms, were also lnvlLed Lo ensure LhaL Lhe resulLs of Lhe workshop could be followed-up by
dlfferenL acLors. 1hrough a prlor cooperaLlon agreemenL beLween Lhe head of Lhe ulSl and Lhe ALlas
of 1orLure Leam, access Lo relevanL lnLernal regulaLlons of Lhe MlA and pracLlcal case examples was
provlded. 1he head of Lhe lnvesLlgaLlon unlL aL Lhe enlLenLlary ueparLmenL was less forLhcomlng,
buL lLs personnel neverLheless parLlclpaLed aL Lhe Workshop.

1he framework for Lhe dlscusslons was seL by Lhe ALlas of 1orLure Leam wlLh an lnpuL on Lhe
lmporLance of sLrong lnLernal accounLablllLy mechanlsm for holdlng publlc offlclals accounLable Lo a
professlonal and human rlghLs orlenLed pollclng culLure. Moreover, Lhe Leam emphaslsed Lhe need
for conslderlng Lhe appllcaLlon of dlsclpllnary lnvesLlgaLlons and sancLlons lndependenLly from Lhe
ouLcome of crlmlnal lnvesLlgaLlons and prosecuLlons ln a glven case. ln llne wlLh lnLernaLlonal
sLandards, boLh Lypes of procedures should pursue dlfferenL purposes and Lhus dlfferenL sLandards
of proof needed Lo be applled.

8epresenLaLlves of Lhe ulSl, Lhe enlLenLlary ueparLmenL and Lhe anLl-LorLure prosecuLors
subsequenLly presenLed Lhelr respecLlve assessmenL of legal and procedural obsLacles Lo a smooLh
cooperaLlon and complemenLary relaLlonshlp beLween dlsclpllnary and crlmlnal procedures. 8ased
on Lhe [olnL dlscusslon of Lhe appllcable laws and lnLernal regulaLlons, a common undersLandlng on
Lhe followlng lssues could be achleved: MosL lmporLanLly, lL could be clarlfled LhaL Lhe prohlblLlon of

37
ulfferenL opLlons for Lhe reform of Lhe ulSl had been elaboraLed ln several consulLaLlon rounds wlLh naLlonal
sLakeholders and were publlshed ln Lhe flrsL quarLer of 2012 on Lhe webslLe of Lhe MlA ln a publlc pollcy documenL
(avallable ln 8omanlan, LlLled ropunere de ollLlc ubllc prlvlnd modernlzarea mecanlsmulul de lnvesLlgare a cazurllor
de inclcare a drepLurllor omulul de cLre anga[all subdlvlzlunllor MlnlsLerulul Afacerllor lnLerne") avallable aL
hLLp://www.mal.md/slLes/defaulL/flles/lmages/ropunere20de20ollLlca20ubllca.doc.
27


double [eopardy ln Lhe CC8M does "1# apply Lo dlsclpllnary sancLlons and Lhe ulsclpllnary SLaLuLes ln
force expllclLly provlded for Lhe lnsLlLuLlon of dlsclpllnary proceedlngs ln parallel

wlLh crlmlnal
lnvesLlgaLlons.
38
Moreover, Lhe sLaLuLe of llmlLaLlons for Lhe appllcaLlon of dlsclpllnary sancLlons,
legally prescrlbed Lo a maxlmum perlod of 6 monLhs from Lhe daLe of commlLLlng Lhe offence, could
be suspended for Lhe Llme perlod of crlmlnal lnvesLlgaLlons.
39
1herefore, Lhe argumenL LhaL Lhe shorL
sLaLuLes of llmlLaLlons lnhlblLed Lhe appllcaLlon of dlsclpllnary sancLlons pendlng Lhe ouLcome of
crlmlnal proceedlngs was noL correcL. Powever, even wlLh a correcL legal readlng of Lhe law
parLlclpanLs agreed LhaL Lhe Llme llmlLs for ln-servlce lnvesLlgaLlons and for Lhe appllcaLlon of
sancLlons was Loo shorL, parLlcularly ln cases where complalnLs were only lodged afLer a cerLaln Llme
span (e.g. because Lhe complalnanL was afrald of reprlsals whlle ln deLenLlon). arLlclpanLs Lherefore
recommended LhaL Lhe prescrlpLlon perlods should be exLended Lhrough amendmenLs Lo Lhe Labour
Code and oLher relevanL laws. ln addlLlon, Lhe channels of communlcaLlon beLween Lhe anLl-LorLure
prosecuLors and Lhe lnLernal lnvesLlgaLlon unlLs should be lmproved Lo ensure prompL referral of
cases and muLual lnformaLlon on Lhe sLaLus and/or closure of crlmlnal lnvesLlgaLlons.

WlLh regard Lo Lhe meLhodology applled ln ln-servlce lnvesLlgaLlons by Lhe ulSl and Lhe enlLenLlary
ueparLmenL, experLs from boLh lnsLlLuLlons provlded pracLlcal examples on some of Lhe challenges
faced as well as success sLorles. Powever, before guldance on Lhe lmprovemenL of Lhe worklng
meLhodology could be developed, Lhe workshop dlsclosed Lhe need Lo more sysLemaLlcally assess
Lhe pracLlce of ln-servlce lnvesLlgaLlons pursued ln lndlvldual cases, Lo creaLe solld basellne daLa
before elaboraLlng meLhodologlcal recommendaLlons.

1he ldea for an ln-depLh assessmenL of Lhe pracLlce of lnLernal lnvesLlgaLlons was Laken on by Lhe
CSCL Mlsslon Lo Moldova, whlch had cooperaLed wlLh Lhe ALlas of 1orLure Leam ln Lhe preparaLlon of
Lhe LxperL Workshop and Laken on a sLrong lnLeresL Lo furLher promoLe Lhe reform of Lhe lnLernal
accounLablllLy mechanlsms wlLhln Lhe MlA. 1he ALlas of 1orLure Leam parLlclpaLed ln several
meeLlngs wlLh CSCL experLs Lo Lechnlcally supporL Lhe developmenL of Lhe research deslgn, scope
and meLhodology of Lhe assessmenL sLudy. A [olnL follow-up Lo Lhe ouLcome of Lhe assessmenL sLudy
had orlglnally been planned for early 2013 buL could noL be lmplemenLed as Lhe sLudy was only
flnallzed afLer Lhe flnal pro[ecL vlslL of Lhe ALlas of 1orLure Leam.

As a resulL of Lhe descrlbed acLlvlLles, Lhe lmporLance of sLrengLhenlng lnLernal accounLablllLy
mechanlsms had been puL on Lhe pollLlcal reform agenda and Laken up by oLher lnLernaLlonal acLors.
1he LargeLed sLakeholders expressed Lhelr saLlsfacLlon LhaL Lhe encounLer beLween represenLaLlve of
lnLernal lnvesLlgaLlon mechanlsms and prosecuLors had enhanced undersLandlng for Lhe dlfferenL
roles and compeLences Lhereby reduclng compeLlLlon and sLrengLhenlng channels of communlcaLlon
and cooperaLlon. As a subsLanLlve ouLcome of Lhe acLlvlLles, Lhe sysLemaLlc mlslnLerpreLaLlon by MlA
personnel of Lhe exlsLlng legal and regulaLory framework on dlsclpllnary procedures had been
addressed and clarlfled, whlch was expecLed Lo poslLlvely lmpacL on Lhe ongolng reform of Lhe ulSl.


3.2.4. Lnhanc|ng the capac|t|es of defence |awyers |n re|at|on to the|r ro|e |n the
prevent|on of torture and the f|ght aga|nst |mpun|ty

Intervent|on Log|c

Whereas lL ls Lhe responslblllLy of Lhe SLaLe Lo ensure LhaL adequaLe leglslaLlve, lnsLlLuLlonal,
procedural and admlnlsLraLlve measures are Laken Lo hold perpeLraLors accounLable, defence

38
See ArLlcle 17 of Lhe ulsclpllnary CharLer for Law-LnforcemenL 8odles, CovernmenL 8esoluLlon no. 2, 1.4.1996, see also
ArLlcle 3 of Lhe ulsclpllnary SLaLuLe for represenLaLlve of Lhe penlLenLlary sysLem, CovernmenL ueclslon no. 308, 19.3.1998.
39
See ArLlcle 209 (2) of Lhe Labour Code and accordlng ArLlcle 30 of Lhe ulsclpllnary SLaLuLe and ArLlcle 29 of Lhe
ulsclpllnary CharLer.
28


lawyers have an lmporLanL role Lo play ln flghLlng lmpunlLy and prevenLlng lll-LreaLmenL. ln Moldova,
Lhe lack of adequaLe quallflcaLlon and awareness of pracLlclng defence lawyers on Lhelr role ln Lhe
proLecLlon of rlghLs of deLalnees and respecLlve pracLlcal Lralnlng on how Lo brlng LorLure complalnLs
Lo courL had been crlLlclsed by many sLakeholders durlng Lhe assessmenL phase. A furLher enLry polnL
ldenLlfled ln Lhe work plan of Lhe ALlas of 1orLure pro[ecL had Lherefore been Lhe sLrengLhenlng of
Lhe role of defence lawyers Lhrough LargeLed capaclLy developmenL as a complemenLary sLraLegy Lo
promoLlng changes Lo Lhe legal framework agalnsL lmpunlLy and supporLlng Lhe auLhorlLles Lo carry
ouL more effecLlve lnvesLlgaLlon and prosecuLlon lnLo LorLure allegaLlons.

Slnce Lhe awalLed adopLlon of Lhe proposed amendmenLs Lo Lhe CC8M and Lhe CC8M was golng Lo
have slgnlflcanL repercusslons on Lhe work of defence lawyers ln defendlng LorLure vlcLlms, Lhe
developmenL of Lralnlng Lools or guldellnes for lawyers had Lo be posLponed unLll Lhe new leglslaLlon
enLered lnLo force. 1he declslon by Lhe Moldovan arllamenL could only be expecLed Lowards Lhe
end of Lhe pro[ecL lmplemenLaLlon. 1he ALlas of 1orLure Leam Lherefore soughL Lhe cooperaLlon wlLh
oLher acLors, who could reach ouL Lo pracLlclng defence lawyers and were lnLeresLed ln engaglng ln
longer-Lerm capaclLy developmenL acLlvlLles ln Lhe fuLure. AgalnsL Lhls background, Lhe ALlas of
1orLure Leam provlded Lechnlcal advlce Lo Lhe Amerlcan 8ar AssoclaLlon 8ule of Law lnlLlaLlve (A8A
8CLl) on Lhe elaboraLlon of a handbook for lawyers.

AnoLher enLry polnL Lo supporLlng access Lo [usLlce was found Lhrough Lhe ALlas of 1orLure small
granL scheme, where a pro[ecL was selecLed LhaL proposed Lhe developmenL of a web-porLal offerlng
lnformaLlon for LorLure vlcLlms and lawyers, lncludlng Lhe provlslon of pro-bono legal advlce.

Act|v|t|es and kesu|ts

8ased on several bllaLeral consulLaLlons beLween Lhe pro[ecL Leam and A8A 8CLl, durlng whlch Lhe
lnlLlal ldea was born Lo provlde pracLlclng lawyers wlLh guldellnes and Lralnlng maLerlals on how Lo
make effecLlve use of Lhe new legal framework agalnsL lmpunlLy ln courL, A8A 8CLl declded Lo go
forward wlLh a parLlclpaLory developmenL of a handbook for defence lawyers. ln SepLember 2012,
Lhe ALlas of 1orLure Leam [olnLly wlLh A8A 8CLl lmplemenLed a round-Lable on enhanclng Lhe role of
lawyers ln combaLlng LorLure and abuse of deLalnees, whlch was aLLended by boLh defence lawyers
and publlc defenders. 1he alm of Lhe round-Lable was Lo dlscuss pracLlcal and legal dlfflculLles
encounLered by lawyers when Laklng cases Lo courL and Lo seek Lhe oplnlon of pracLlLloners on Lhe
mosL useful formaL for a handbook. ulscusslon focussed on Lhe necessary procedural sLeps and
experLlse Lo secure relevanL evldence cruclal for corroboraLlng complalnLs abouL LorLure, as well as
legal mechanlsm for lawyers Lo challenge Lhe effecLlveness of crlmlnal lnvesLlgaLlons or Lhe closure of
cases. AnoLher lssue addressed was Lhe submlsslon of moLlons Lo exclude evldence obLalned by
coerclon and Lhe submlsslon of clvll clalms for damages on behalf of LorLure vlcLlms.

1he resulLs of Lhe round-Lable were lncluded ln a drafL ouLllne for Lhe handbook and a group of
pracLlclng lawyers coordlnaLed by A8A 8CLl elaboraLed handbook drafL documenL. uurlng lLs flnal
pro[ecL vlslL ln !anuary 2013, Lhe ALlas of 1orLure Leam was agaln lnvlLed Lo dlscuss wlLh Lhe group of
auLhors. 1he role of ALlas of 1orLure Leam was llmlLed Lo provldlng experLlse on lnLernaLlonal
sLandards relaLlng Lo combaLlng LorLure and poLenLlal Loplcs Lo be lncluded ln Lhe guldellnes,
whereas A8A 8CLl ensured Lhe ouLreach Lo and lnpuL of pracLlclng lawyers and Lhe coordlnaLlon and
flnanclng of Lhe drafLlng process.
60


WlLh regard Lo lLs small granL scheme, Lhe ALlas of 1orLure pro[ecL lssued a publlc call for mlcro
pro[ecLs Lo supporL local lnlLlaLlves ln Lhe flghL agalnsL LorLure and lmpunlLy. Among 13 appllcaLlons
recelved, Lhe pro[ecL "SLop 1orLure ln Moldova" proposed by Lhe nCC Puman 8lghLs Lmbassy was

60
1he handbook for defence lawyers was flnallzed ln 2013 and ls avallable on Lhe webslLe of Lhe Moldovan 8ar AssoclaLlon
aL hLLp://www.avocaLul.md/flles/documenLs/36036-Apararea20vlcLlmelor20LorLurll.pdf.
29


selecLed for fundlng.
61
1he small pro[ecL enLalled esLabllshlng an onllne-plaLform for vlcLlms of lll-
LreaLmenL and oLher lnLeresLed persons on access Lo [usLlce, pracLlcal Lools for lawyers and vlcLlms
how Lo brlng complalnLs as well as lnformaLlon on lnLernaLlonal and domesLlc legal sLandards. ln
addlLlon, pro-bono legal advlce and consulLaLlons have been made avallable Lhrough an lnLeracLlve
communlcaLlon Lool on Lhe webslLe. 1hroughouL Lhe plloL phase of Lhe pro[ecL (unLll SepLember
2013), 13 lndlvlduals have been supporLed wlLh several hours of pro-bono legal advlce ln each case.
Lmbedded ln capaclLy developmenL acLlvlLles lmplemenLed by Lhe Puman 8lghLs Lmbassy, Lhe
webslLe ls also expecLed Lo consLlLuLe Lhe basls for Lhe lmplemenLaLlon of lnLerneL-based Lralnlng
courses and regular exchange among legal pracLlLloners ln Moldova and Lhe reglon. 1o ensure Lhe
susLalnablllLy of Lhe webslLe, Lhe ALlas of 1orLure Leam has supporLed Lhe appllcaLlon for follow-up
fundlng by Lhe Puman 8lghLs Lmbassy Lo lnLernaLlonal donors.


3.3. Lva|uat|on of est|mated |mpact of pro[ect act|v|t|es on the f|ght aga|nst
|mpun|ty and enhanced accountab|||ty

Whlle lL ls Loo early Lo measure Lhe acLual lmpacL, whlch Lhe ALlas of 1orLure acLlvlLles have had on
Lhe flghL agalnsL lmpunlLy ln Moldova ln Lerms of lncreaslng Lhe number of prosecuLlons and
convlcLlons, several lndlcaLors suggesL LhaL Lhe pro[ecL slgnlflcanLly lmpacLed boLh on Lhe process of
reformlng Lhe legal framework and on produclng opLlons for necessary furLher reform measures. 1he
followlng evaluaLlon of esLlmaLed lmpacL ln a shorL, mld and long Lerm vlew ls parLly based on Lhe
feedback recelved from dlfferenL sLakeholders LhroughouL Lhe pro[ecL lmplemenLaLlon and
parLlcularly durlng Lhe flnal pro[ecL round-Lable, whlch Look sLock of Lhe resulLs and lmpacL achleved.

Cenerally speaklng, successlve rounds of Lechnlcal dlscusslons on necessary legal and lnsLlLuLlonal
reform sLeps (durlng Lhe klck-Cff Conference and subsequenL acLlvlLles) resulLed ln a deeper
undersLandlng among represenLaLlves of responslble lnsLlLuLlons and clvll socleLy on Lhe lnLer-
connecLedness of dlfferenL sysLemlc facLors conLrlbuLlng Lo Lhe perslsLence of lmpunlLy. key acLors
from Lhe law enforcemenL and prosecuLlon servlces were lnLeresLed ln parLlclpaLlng and commlLLlng
Lo Lhe developmenL of [olnL proposals Lo overcome exlsLlng obsLacles Lo flghLlng lmpunlLy as parL of a
personal amblLlon Lo achleve greaLer professlonallsm ln Lhelr respecLlve worklng conLexL. As a dlrecL
resulL of Lhese [olnL dlscusslons, many sLakeholders expressed LhaL Lhe pro[ecL acLlvlLles had noL only
sharpened Lhelr undersLandlng of exlsLlng problems, buL also led Lo an enhanced communlcaLlon and
cooperaLlon wlLh oLher acLors ln a crlmlnal [usLlce secLor, whlch had a dlrecL effecL on Lhelr worklng
pracLlce. lor example, boLh Lhe anLl-LorLure prosecuLors as well as Lhe sLaff of Lhe lnLernal
lnvesLlgaLlon unlL aL Lhe MlA acknowledged LhaL Lhrough parLlclpaLlon ln pro[ecL acLlvlLles Lhey had
slgnlflcanLly lmproved Lhelr cooperaLlon. 1he Pead of Lhe CenLre for lorenslc Medlclne also noLed
LhaL hls worklng relaLlonshlp wlLh Lhe anLl-LorLure prosecuLors had lmproved Lhrough Lhe
cooperaLlon ln Lhe pro[ecL acLlvlLles. Lqually, clvll socleLy represenLaLlves LargeLed by Lhe pro[ecL
acLlvlLles poslLlvely menLloned LhaL Lhelr relaLlonshlp wlLh sLaLe auLhorlLles had lmproved and Lhelr
ablllLy Lo cooperaLe on a Lechnlcal level had been lncreased.

1he blggesL and mosL vlslble lmpacL achleved by Lhe pro[ecL ln Lhe fleld of flghLlng lmpunlLy cerLalnly
relaLes Lo Lhe parLlclpaLory developmenL of drafL amendmenLs Lo Lhe CC8M adopLed by Lhe
Moldovan arllamenL wlLhln less Lhan a year. uurlng Lhe lmplemenLaLlon of pro[ecL acLlvlLles, Lhe
followlng effecLs were dlscernable: 1he lnvolvemenL of a broad varleLy of acLors and Lhe
lmplemenLaLlon of LargeLed advocacy acLlvlLles had Lhe effecL of ralslng awareness of Lhe general
publlc on Lhe necesslLy Lo amend Lhe legal framework. Moreover, Lhe pro[ecL acLlvlLles conLrlbuLed
Lo malnLalnlng Lhe flghL agalnsL lmpunlLy as a hlgh prlorlLy on Lhe reform agenda of pollLlcal declslon-
Lakers. LasLly, Lhe subsLances of Lhe leglslaLlve proposals developed ln Lhe pro[ecL were also carrled

61
lor more lnformaLlon, see www.humanrlghLsembassy.org.
30


lnLo academlc dlscusslons aL Lhe unlverslLy by several parLlclpanLs of pro[ecL acLlvlLles, Lhus ralslng
awareness among young professlonals on Lhe necessary reforms.

As a dlrecL ouLcome of Lhe pro[ecL acLlvlLles, Lhe 8epubllc of Moldova had lald down a new leglslaLlve
foundaLlon for effecLlvely combaLlng lmpunlLy of LorLure and Lhereby lmplemenLed a number of long
overdue recommendaLlons made by lnLernaLlonal and reglonal LorLure monlLorlng bodles. 1he
pro[ecL could produce such an lmpacL due Lo several facLors: WlLh regard Lo Lhe process leadlng Lo
Lhe developmenL of a subsLanLlve proposal for amendlng Lhe CC8M, all relevanL lnsLlLuLlons and
sLakeholders had been lncluded. 1hus a broad range of oplnlons and experlences from pracLlLloners
had been Laken lnLo accounL from Lhe very beglnnlng, and as a consequence broad ownershlp of Lhe
reform had been creaLed lncludlng from lmporLanL sLaLe and non-sLaLe acLors. AnoLher cruclal facLor
was Lhe allgnmenL of pro[ecL acLlvlLles wlLh Lhe naLlonal AcLlon lan for leglslaLlve reform ln 2012
and Lhe llnklng of Lhe proposed amendmenLs Lo Lhe CC8M wlLh anLl-LorLure relaLed amendmenLs Lo
Lhe CC8M lnlLlally developed ln Lhe framework of Lhe above menLloned unu pro[ecL. ro[ecL
acLlvlLles and resulLs Lherefore dlrecLly conLrlbuLed Lo achlevlng Lhe domesLlc reform schedule and
provlded opporLunlLles for synergles and relnvlgoraLlng dlscusslons.
ln Lhe deslgn of acLlvlLles, Lhe pro[ecL effecLlvely used Lhe comblnaLlon of lnLernaLlonal comparaLlve
experLlse provlded by Lhe vlenna-based experL Leam and Lhe subsLanLlve experLlse on Lhe domesLlc
crlmlnal legal sysLem and pracLlcal experlence provlded by Lhe local olnLs and a wlde range of
sLakeholders. WlLhouL Lhe conLlnulng subsLanLlve commlLmenL, enLhuslasm and soluLlon-orlenLed
professlonallsm of many acLors lncludlng Lhe anLl-LorLure prosecuLors, defence lawyers and clvll
socleLy organlzaLlon, for whom Lhe amendmenLs wlll have a pracLlcal relevance ln Lhelr fuLure work,
Lhls lmpacL would noL have been achleved. 1he lncluslveness of Lhe pro[ecL acLlvlLles also mlnlmlzed
Lhe rlsk of lengLhy subsLanLlve dlscusslon LhroughouL Lhe formal publlc consulLaLlon process. MosL
lmporLanLly, however, Lhe follow-up LhroughouL Lhe formal leglslaLlve process was ensured by Lhe
Lwo local olnLs Lhrough conLlnulng parLlclpaLlon ln and monlLorlng of pollLlcal dlscusslons.
lL remalns Lo be seen how Lhe new leglslaLlve framework wlll be applled ln pracLlce
62
by prosecuLors,
[udges and defence lawyers. AL Lhe Llme of wrlLlng, a cerLaln effecL of Lhe leglslaLlve reform may
already be dlscernable: Whlle Lhe senLenclng pracLlce by Moldovan CourLs ln cases of LorLure
LhroughouL 2012 and 2013 conLlnued Lo rely on Lhe posslblllLy Lo suspend prlson senLences agalnsL
convlcLed pollce offlcers, Lhe prosecuLors concerned appealed agalnsL Lhese declslons ln several
cases on Lhe ground LhaL Lhe suspended senLences were consldered Lo be Loo lenlenL.
63
1hls ls a very
poslLlve developmenL, whlch ralses hopes LhaL Lhe revlsed legal framework wlll conLrlbuLe Lo
changlng Lhe approach of prosecuLors, followed by changes Lo Lhe [udlclal pracLlce from lmpunlLy Lo
effecLlve crlmlnal accounLablllLy of perpeLraLors. 1hrough Lhe elaboraLlon of Lhe meLhodologlcal
recommendaLlons for anLl-LorLure prosecuLors and Lhere adopLlon as mandaLory regulaLlon by Lhe
Ceneral rosecuLor, lL can be expecLed LhaL Lhe quallLy and professlonallsm of Lhe lnvesLlgaLlon and
prosecuLlon pracLlce wlll slgnlflcanLly lmprove.

62
1he newly adopLed provlslons ln Lhe CC8M are only appllcable Lo acLs, whlch have been commlLLed afLer Lhe enLry lnLo
force of Lhe revlsed Code ln !anuary 2013 and can Lherefore noL be applled Lo Lhe greaL number of pendlng lnvesLlgaLlons of
LorLure cases commlLLed before LhaL daLe.
63
ln a case of Lhree pollce offlcers from lalovenl, who had physlcally abused and lll-LreaLed several people ln a publlc bar
and laLer aL Lhe pollce sLaLlon, Lhe perpeLraLors were convlcLed by Lhe flrsL lnsLance courL for 3 years of lmprlsonmenL, buL
Lhe senLences were suspended. 1he prosecuLors appealed Lo Lhe superlor courL on Lhe ground LhaL Lhe punlshmenL was Loo
lenlenL ln llghL of Lhe gravlLy of Lhe offence (for more lnformaLlon, see Lhe arLlcle on Lhe webslLe of Lhe CC 1rel polll;Ll
dln lalovenl condamnal penLru LorLur", avallable aL hLLp://www.procuraLura.md/md/newslsL/1211/1/3166/), ln a case
concernlng severe lll-LreaLmenL lnfllcLed by a crlmlnal lnvesLlgaLor on a young boy lmmedlaLely followlng Lhe Aprll 2009
evenLs for Lhe purpose of exLracLlng lnformaLlon abouL parLlclpanLs of Lhe posL-elecLlon proLesLs, Lhe facLs were quallfled as
abuse of powers by Lhe flrsL lnsLance [udge, even Lhough Lhe prosecuLlon had broughL charges on Lhe grounds of LorLure,
and Lhe perpeLraLor was convlcLed for 3 years lmprlsonmenL, wlLh Lhe senLence belng suspended on probaLlon. Also ln Lhls
case, Lhe responslble prosecuLor appealed on Lhe ground of lnapproprlaLe senLences (for more lnformaLlon, see Lhe arLlcle
on Lhe webslLe of Lhe CC, lnc un polllsL condamnaL in ,dosarul 7 aprllle 2009", avallable aL
hLLp://www.procuraLura.md/md/newslsL/1211/1/3310/).
31


Cne caveaL remalns, however, wlLh vlew Lo Lhe lmpacL of Lhe pro[ecL acLlvlLles on Lhe flghL agalnsL
lmpunlLy: As menLloned above, Lhe punlshmenL level for cruel, lnhuman and degradlng LreaLmenL ln
Lhe new amendmenLs Lo Lhe CC8M adopLed by Lhe Moldovan arllamenL was changed from Lhe
orlglnal proposal developed ln Lhe framework of Lhe ALlas of 1orLure pro[ecL. As a resulL, Lhe
punlshmenL for even severe cases of lll-LreaLmenL can now be llmlLed Lo a moneLary flne, whlch
slgnlflcanLly reduces Lhe lmpacL of Lhe revlsed CC8M on Lhe effecLlve flghL agalnsL lll-LreaLmenL
8$(19 #5$ #5%$+51(0 1. #1%#2%$. 1hls ls all Lhe more regreLLable, as Lhe effecLlve crlmlnallzaLlon of lll-
LreaLmenL ln Lhe drafL proposal would have consLlLuLed a besL pracLlce example ln comparaLlve
lnLernaLlonal pracLlce on Lhe flghL agalnsL lmpunlLy. lL has Lo be hoped LhaL Lhls seLback can be
aLLrlbuLed Lo an edlLorlal mlsLake and wlll be remedled by Lhe Moldovan leglslaLor ln Lhe near fuLure.
1he second level of lmpacL achleved by Lhe ALlas of 1orLure pro[ecL on Lhe flghL agalnsL lmpunlLy
relaLes Lo Lhe promot|on of necessary |nst|tut|ona| reforms to ensure |ndependent |nvest|gat|on
and prosecut|on. 1he acLlvlLles ln Lhls fleld, parLlcular Lhe lnLernaLlonal LxperL Conference,
conLrlbuLed Lo Lhe developmenL of concreLe opLlons for reformlng Lhe exlsLlng sysLem of anLl-LorLure
prosecuLors Lhrough an enhanced undersLandlng of lLs currenL sLrengLhs and weaknesses. As Lhe
recommendaLlons developed ln Lhe framework of Lhe pro[ecL dlrecLly relaLe Lo Lhe mllesLones
deflned ln Lhe naLlonal AcLlon lan of Lhe !usLlce SecLor 8eform SLraLegy, Lhey can provlde a useful
reference ln Lhe ongolng process of reformlng Lhe prosecuLlon servlces. ln Lhe shorL Lerm, Lhe
acLlvlLles sLrengLhened Lhe poslLlon of Lhe anLl-LorLure prosecuLors and Lhelr relaLlonshlp wlLh oLher
sLaLe and non-sLaLe acLors.
64

1hlrdly, Lhe pro[ecL acLlvlLles enhanced Lhe undersLandlng of Lhe weaknesses of dlsclpllnary
procedures wlLhln Lhe pollce and penlLenLlary deparLmenL and Lhe need to strengthen |nterna|
accountab|||ty mechan|sms ln order Lo ensure LhaL Lhe zero-Lolerance pollcy ln relaLlon Lo LorLure ls
enforced lnLernally wlLhln Lhe law enforcemenL bodles. 1he acLlvlLles ln Lhls fleld had an lmporLanL
agenda seLLlng effecL, resulLlng ln Lhe developmenL of a follow-up pro[ecL by Lhe CSCL Mlsslon Lo
Moldova. 1hrough Lhe adopLlon of an lnLer-dlsclpllnary approach and Lhe lncluslon of sLaLe and non-
sLaLe acLors, recommendaLlons could be developed on necessary amendmenLs Lo Lhe legal
framework regulaLlng Lhe relaLlonshlp beLween crlmlnal and dlsclpllnary procedures, whlch are
expecLed Lo be Laken lnLo accounL ln Lhe ongolng reform of Lhe MlA. 1he mosL dlrecL ouLcome,
however, was an enhanced communlcaLlon and cooperaLlon beLween Lhe lnLernal lnvesLlgaLlon unlL
aL Lhe MlA and Lhe anLl-LorLure prosecuLors, who - accordlng Lo Lhelr own sLaLemenLs - had become
more aware of Lhe weak polnLs ln Lhelr procedural relaLlonshlp. Moreover, Lhe acLlvlLles led Lo Lhe
open acknowledgemenL of reform needs wlLhln Lhe MlA's lnLernal accounLablllLy sLrucLures.
1he leasL dlrecL lmpacL was achleved ln relaLlon Lo sLrengLhenlng Lhe capaclLles of defence lawyers
due Lo Lhe necesslLy Lo sequence pro[ecL acLlvlLles. Powever, wlLh Lhe lnlLlaLlon of a manual for
defence lawyers on Lhelr role ln LorLure prevenLlon developed under Lhe ausplces of Lhe A8A 8CLl,
Lhe ALlas of 1orLure Leam has successfully handed over Lhls Loplc Lo a locally based acLor, whlch ls ln
a much beLLer poslLlon Lo reach ouL Lo Lhe relevanL LargeL group.

3.4. Contr|but|ng to the reform of the Nat|ona| revent|ve Mechan|sm

Intervent|on strategy

An effecLlvely funcLlonlng naLlonal revenLlve Mechanlsm conducLlng regular vlslLs Lo places of
deLenLlon ls a cruclal lnsLrumenL conLrlbuLlng Lo gradually overcomlng Lhe underlylng sysLemlc

64
All acLlvlLles lmplemenLed ln cooperaLlon wlLh or dlrecLly LargeLlng Lhe AnLl-1orLure unlL aL Lhe CC are referenced ln Lhe
response of Lhe 8epubllc of Moldova on Lhe llsL of lssues presenLed by Lhe un CA1 CommlLLee prlor Lo Lhe conslderaLlon of
Lhe 3
rd
perlodlc reporL, un uoc. CA1/C/MuA/C/3, 11 !uly 2012, avallable aL
hLLp://parLlclp.gov.md/publlc/documenLe/119/ro_1300_CA1-Lol8-3rd-perlodlc-reporL-8epubllc-of-Moldova-(Ln)-
10.11.2013-flnal.doc.
32


facLors for human rlghLs vlolaLlons of deLalnees and Lhe perslsLence of LorLure and lll-LreaLmenL.
Clven Lhe mulLlple sLrucLural problems faced by Lhe Moldovan penlLenLlary sysLem and psychlaLrlc
lnsLlLuLlons and Lhe prevalence of lll-LreaLmenL aL Lhe hands of law enforcemenL personnel, regular
lndependenL monlLorlng could funcLlon boLh as proLecLlon as well as deLerrenL Lo furLher abuse.
Moreover, Lhe nM could become a moLor for reforms Lhrough Lhe developmenL of sLrucLural
recommendaLlons how Lhe slLuaLlon ln deLenLlon can be lmproved and Lhe conLlnulng evaluaLlon of
Lhe effecL of new pollcles and laws ln pracLlce. 1o achleve Lhls, Lhe Moldovan nM clearly needed Lo
be reformed Lo become a fully lndependenL, professlonally Lralned and sufflclenLly funded body.

Slnce Lhe raLlflcaLlon of Lhe CCA1 and Lhe esLabllshmenL of Lhe nM aL Lhe MCP8, Lhe lnLernaLlonal
communlLy, ln parLlcular Lhe un, unu and Lhe CSCL had conLlnuously supporLed Lhe nM. 1he
unS81 and members of Lhe ALlas of 1orLure Leam had already been engaged ln capaclLy
developmenL of Lhe nM ln 2009. ln 2011, unu was ln Lhe process of Lralnlng Lhe new members
and flnallzlng a pro[ecL provldlng Lechnlcal supporL Lo Lhe MP8C.

1hus, aL Lhe Llme of Lhe launch of Lhe ALlas of 1orLure pro[ecL, many dlfferenL sLakeholders were
engaged ln promoLlng Lhe reform Lhe Moldovan nM. MosL lmporLanLly, Lhe Moldovan CovernmenL
had acknowledged Lhe necesslLy of clarlfylng Lhe legal framework of Lhe nM as well as reformlng
Lhe MCP8.
63
A separaLe Worklng Croup had been lnlLlaLed by Lhe MC! ln 2011 Lo focus on revlslng
Lhe legal framework of Lhe CmbudslnsLlLuLlon, lncludlng Lhe nM. ln november 2011, former unS81
and ALlas of 1orLure pro[ecL leader Manfred nowak was lnvlLed Lo funcLlon as honorary chalr of LhaL
Worklng Croup. 1he ALlas of 1orLure Leam Lhus declded Lo supporL Lhe offlclal reform process
Lhrough parLlclpaLlon ln Lhe Worklng Croup, wlLh a focus on Lhose aspecLs parLlcularly concernlng
Lhe nM.

1he acLlvlLles and lnLervenLlons by Lhe ALlas of 1orLure pro[ecL lncluded provldlng susLalned advlce
and comparaLlve experLlse based on besL pracLlce examples from oLher counLrles Lo supporL Lhe
declslon on how Lhe new Moldovan nM should llke. Cnce, Lhe MC! had declded on Lhe lnsLlLuLlonal
opLlon, Lechnlcal legal drafLlng supporL for Lhe elaboraLlon of a new legal basls of Lhe nM was
provlded. As access Lo Lhe Worklng Croup was llmlLed Lo selecLed clvll socleLy represenLaLlves, Lhe
ALlas of 1orLure pro[ecL also organlzed exchanges wlLh nCCs on Lhe drafL amendmenLs developed
wlLhln Lhe pro[ecL. lurLhermore, sLrong coordlnaLlon was soughL wlLh Lhose lnLernaLlonal and
naLlonal acLors dlrecLly lnvolved ln Lhe Worklng Croup ln order Lo sLreamllne recommendaLlons. 1he
susLalned engagemenL of Lhe ALlas of 1orLure pro[ecL ln Lhls process heavlly relled on Lhe conLlnulng
lnvolvemenL of local olnLs boLh wlLhln Lhe Worklng Croups and ouLslde LhroughouL 2012 and 2013.

ro[ect act|v|t|es and resu|ts

Already durlng Lhe second pro[ecL vlslL, Lhe ALlas of 1orLure Leam Look parL ln Lhe offlclal Worklng
Croup aL Lhe MC! on Lhe reform of Lhe arllamenLary AdvocaLes, Lhe MCP8 and Lhe nM. 1hls lnlLlal
meeLlng was used Lo emphaslze Lhe lmporLance of achlevlng legal compllance wlLh Lhe arls
rlnclples
66
, and Lo encourage open dlscusslons on Lhe advanLages and dlsadvanLages of reLalnlng
Lhe nM wlLhln Lhe realms of Lhe lnsLlLuLlon of Lhe arllamenLary AdvocaLes versus Lhe creaLlon of a
separaLe lndependenL mechanlsm. 1he pro[ecL klck-Cff Conference provlded a furLher opporLunlLy

63
1he MCP8 had so far only been accredlLed wlLh 8-SLaLus by Lhe lnLernaLlonal CoordlnaLlon CommlLLee (lCC) of naLlonal
lnsLlLuLlons for Lhe romoLlon and roLecLlon of Puman 8lghLs, whlch accredlLs naLlonal Puman 8lghLs lnsLlLuLlons (nP8ls),
and classlfles Lhem ln A, 8, and C caLegorles, accordlng Lo Lhelr compllance wlLh Lhe arls rlnclples (rlnclples relaLlng Lo
Lhe sLaLus of naLlonal lnsLlLuLlons (arls rlnclples"), adopLed by Lhe un Puman 8lghLs Commlsslon 8esoluLlon 1992/34,
1992 and Lhe un Ceneral Assembly 8esoluLlon 48/134, 1993). 1he classlflcaLlon of Lhe MCP8 wlLh "8-SLaLus" ln 2009
slgnalled LhaL lL could noL be consldered ln full compllance wlLh Lhe sLandards of lndependence and professlonallsm seL by
Lhe arls rlnclples. lor more lnformaLlon, see Lhe CharL of SLaLuLes of AccredlLaLlon, !uly 2013, avallable aL
www.nhrl.ohchr.org/Ln/ConLacL/nP8ls/uocumenLs.
66
See fooLnoLe 63.
33


for Lhe ALlas of 1orLure Leam Lo broaden Lhe dlscusslon on Lhe necessary reform of Lhe nM and Lhe
CenLre and gaLher Lhe dlfferenL vlewpolnLs from Lhe arllamenLary AdvocaLe headlng Lhe MCP8,
members of Lhe CenLre as well as members of Lhe ConsulLaLlve Councll worklng as parL of Lhe nM.
arLlclpanLs agreed LhaL a new organlc law needed Lo provlde for a separaLe budgeL llne for Lhe nM,
lndependenL from Lhe fundlng of Lhe MCP8, a LransparenL selecLlon of members of Lhe nM, and Lo
ensure LhaL Lhe lnLernal regulaLlons guaranLeed plurallsLlc declslon-maklng procedures.

lurLher dlrecL consulLaLlons could noL be held as planned ln early 2012, because Lhe second meeLlng
of Lhe offlclal Worklng Croup, whlch was envlsaged durlng Lhe perlod of Lhe Lhlrd pro[ecL vlslL, had
been cancelled for oLher reform prlorlLles. 1he ALlas of 1orLure Leam declded Lo keep up Lhe
momenLum by provldlng a wrlLLen advlsory oplnlon Lo Lhe MC!, whlch hlghllghLed once more Lhe
advanLages of creaLlng a separaLe mechanlsm as nM ouLslde Lhe Cmbudsofflce.
67
1he documenL
focused on Lhe maln areas of concern and concreLe recommendaLlons how Lo address Lhem ln a
revlsed organlc law for Lhe nM. 1he recommendaLlons were subsequenLly supporLed by Lhe local
olnLs aL Lhe offlclal Worklng Croup durlng lLs nexL sesslon ln sprlng 2012.

A flrsL verslon of Lhe revlsed law on Lhe arllamenLary AdvocaLe was clrculaLed by Lhe MC! ln Aprll
2012 wlLh Lhe requesL for commenLs. AL LhaL polnL ln Llme, lL had become clear LhaL Lhe Moldovan
CovernmenL favoured Lhe exlsLlng lnsLlLuLlonal model of an nM wlLhln Lhe Cmbudsofflce. 8ased on
Lhe prevlously made generlc recommendaLlons, Lhe ALlas of 1orLure Leam now commenLed dlrecLly
on Lhe drafL law by developlng a revlsed verslon of Lhe ChapLer lv of Lhe law on arllamenLary
AdvocaLes relaLlng Lo Lhe nM. Cne of Lhe maln aspecLs emphaslsed by Lhe pro[ecL was LhaL Lhe
revlsed law needed Lo ensure Lhe funcLlonlng of Lhe ConsulLaLlve Councll as colleglal declslon-maklng
body, fully equlpped wlLh all compeLences and rlghLs ln accordance wlLh Lhe CCA1 and selecLed
accordlng Lo professlonal experlence and personal lndependence. 1o reallse Lhls ln pracLlce, Lhe law
also needed Lo speclfy necessary admlnlsLraLlve supporL and ensure adequaLe resources and a
separaLe budgeL llne, lncludlng remuneraLlon for Lhe members of Lhe Councll based on Lhe Llme
lnvesLed. All Lhese proposals were deslgned wlLh vlew Lo remedylng Lhe exlsLlng lack of clarlLy ln
mandaLe and compeLences and ensurlng proper fundlng of Lhe mechanlsm ln Lhe fuLure. 1he revlsed
ChapLer lv was dlscussed durlng a workshop wlLh represenLaLlves of seven nCCs, who suggesLed
furLher addlLlons and valldaLed Lhe drafL. 1hus Lhe pro[ecL ensured broad ownershlp of Lhe
recommendaLlons developed and ralsed awareness of Lhe sLaLus of reform dlscusslons beyond Lhe
members of Lhe offlclal Worklng Croup. 1he flnallsed verslon of Lhe drafL proposal for ChapLer lv was
LransmlLLed Lo Lhe MlnlsLry for furLher conslderaLlon ln Lhe Worklng Croup. ln addlLlon, Lhe nCC
workshop provlded Lhe opporLunlLy for clvll socleLy represenLaLlves Lo coordlnaLe Lhelr lnpuL lnLo Lhe
upcomlng vlslL of Lhe un Sub-CommlLLee on Lhe revenLlon of 1orLure scheduled for CcLober 2012.

1hroughouL Lhe summer 2012, new verslons of Lhe revlsed law on Lhe arllamenLary AdvocaLes were
clrculaLed by Lhe MC!, whlch lncluded several amendmenLs proposed by Lhe ALlas of 1orLure pro[ecL.
lor Lhe nexL round of commenLs, Lhe ALlas of 1orLure Leam coordlnaLed furLher recommendaLlons
wlLh Lhe un Mlsslon Lo Moldova. A pre-flnal drafL verslon was clrculaLed by Lhe MC! wlLh Lhe
Worklng Croup members prlor Lo lLs meeLlng ln SepLember 2012, ln whlch Lhe ALlas of 1orLure Leam
agaln parLlclpaLed. Several lmporLanL recommendaLlons had been lnLegraLed lnLo Lhe revlsed law.
Powever, domesLlc sLakeholders ln Lhe Worklng Croup remalned dlvlded on Lhe role of Lhe
arllamenLary AdvocaLe, Lhe auLonomy of Lhe Councll and lLs relaLlonshlp wlLh Lhe MCP8. lollowlng
Lhe MlnlsLry's requesL Lo all parLlclpanLs Lo submlL Lhelr wrlLLen assessmenL of dlfferenL lnsLlLuLlonal
opLlons, Lhe ALlas of 1orLure Leam coordlnaLed a 8ound 1able ln cooperaLlon wlLh unu Lo whlch all
represenLaLlves of Lhe lnLernaLlonal communlLy and clvll socleLy experLs were lnvlLed, who
parLlclpaLed ln Lhe Worklng Croup. 1he purpose of Lhe 8ound 1able was Lo enhance coordlnaLlon
beLween dlfferenL acLors.


67
1he documenL ls avallable aL www.aLlas-of-LorLure.org.
34


ln prlnclple, parLlclpanLs aL Lhe 8ound 1able favoured Lhe esLabllshmenL of Lhe nM as a body
compleLely lndependenL from Lhe CmbudslnsLlLuLlon, as such a model would prevenL Lhe rlsk of
blurrlng Lhe llne beLween Lhe prevenLlve approach of an nM and Lhe malnly reacLlve mandaLe of
Lhe Cmbudsofflce. ln addlLlon, Lhe relaLlvely sLrong and pollLlclsed poslLlon of Lhe Cmbudsman
would rlsk domlnaLlng Lhe nM, whlch should be worklng ln a colleglal raLher Lhan a hlerarchlcal
manner. 1aklng lnLo accounL LhaL pollLlcal declslon-Lakers had excluded Lhe opLlon of creaLlng an
lndependenL body, Lhe experLs aL Lhe round Lable concenLraLed Lhelr recommendaLlons on ensurlng
adequaLe "safeguards" ln Lhe new drafL law Lo mlLlgaLe Lhe above menLloned rlsk facLors. 1he [olnL
commenLary Lhus proposed lnLer alla Lo llmlL Lhe role of Lhe arllamenLary AdvocaLe ln Lhe work of
Lhe nM, ensure Lransparency ln Lhe selecLlon of nM members, lncrease Lhe number of experLs,
and guaranLee flnanclal lndependence and budgeLary auLonomy for Lhe nM. 1he [olnL
commenLary
68
produced aL Lhe 8ound 1able served Lo coordlnaLe feedback Lo Lhe MC! beLween
acLors lnvolved ln Lhe Worklng Croup. ln vlew of Lhe upcomlng vlslL of Lhe S1, Lhe commenLary was
also shared wlLh Lhe SecreLarlaL of Lhe S1 Lo ensure LhaL Lhe developed recommendaLlons would be
Laken lnLo accounL ln Lhe revlew process by Lhe CommlLLee.

1he reporL on Lhe vlslL of Lhe S1
69
, whlch had conducLed lLs nM-speclflc asslsLance mlsslon ln
CcLober 2012 was publlshed ln March 2013 and conLalned many aspecLs slmllar Lo Lhe
recommendaLlons developed by Lhe ALlas of 1orLure pro[ecL, Lhe un Mlsslon ln Moldova and oLher
acLors. 1hroughouL Lhe summer of 2013, Lhe local olnLs and local clvll socleLy acLors conLlnued Lhelr
acLlve engagemenL ln Lhe Worklng Croup and subsequenL publlc debaLes on Lhe drafL law organlsed
by Lhe MC!. ln parLlcular, Lhe Legal 8esources CenLre, developed several proposals for Lhe MlnlsLry of
!usLlce and relevanL parllamenLary Commlsslons.
70
1hese follow-up acLlvlLles proved declslve ln
ensurlng LhaL mosL of Lhe recommendaLlons and proposals developed wlLhln Lhe ALlas of 1orLure
pro[ecL were successfully lnLegraLed lnLo successlve drafL verslons and supporLed Lhrough Lhe publlc
consulLaLlons process. ln SepLember 2013, Lhe mlnlsLerlal drafL "Law on Lhe eople's AdvocaLe",
lncludlng Lhe legal basls for Lhe nM, was submlLLed for approval Lo Lhe CovernmenL lollowlng
several conLroverslal dlscusslons ln arllamenL, Lhe drafL law no 371 on eople's AdvocaLe was
adopLed ln Lhe flnal readlng by Lhe arllamenL on 26.12.2013. AL Lhe Llme of flnallslng Lhe reporL, Lhe
adopLed LexL was noL publlshed yeL on Lhe arllamenL's web page. uue Lo some essenLlal changes
durlng Lhe parllamenLary readlng Lo Lhe drafL law whlch were noL consulLed wlLh Lhe clvll socleLy,
more Lhan 17 nCCs requesLed Lhe presldenL of Lhe 8epubllc of Moldova noL Lo promulgaLe Lhe
recenLly adopLed law.
71



3.4.1 Lva|uat|on of est|mated |mpact of pro[ect act|v|t|es on the reform of the NM

As a consequence of Lhe declslon Lo focus pro[ecL supporL on Lhe CovernmenL-led reform process of
Lhe Cmbudsofflce, Lhe resulLs achleved by Lhe ALlas of 1orLure pro[ecL on Lhe reform of Lhe nM
largely depended on Lhe offlclal worklng schedule. Whlle meeLlngs of Lhe Worklng Croup aL Lhe MC!
were lrregular and ofLen posLponed due Lo changlng reform prlorlLles aL Lhe MlnlsLry, Lhe ALlas of
1orLure pro[ecL conLrlbuLed Lo malnLalnlng Lhe momenLum for Lhe reform of Lhe nM Lhrough Lhe
clrculaLlon of wrlLLen advlce and commenLs. ln llghL of Lhe abundance of naLlonal and lnLernaLlonal
acLors lnvolved ln Lhe reform dlscusslons, Lhe pro[ecL's maln lmpacL on Lhe reform process was a
sLrengLhened coordlnaLlon of experLlse and advlce provlded by dlfferenL lnLernaLlonal acLors,
lncludlng represenLaLlves of Lhe un, Lhe Councll of Lurope, and Lhe CSCL as well as clvll socleLy

68
1he documenL ls avallable aL www.aLlas-of-LorLure.org.
69
8eporL on Lhe vlslL made by Lhe SubcommlLLee on revenLlon of 1orLure and CLher Cruel, lnhuman or uegradlng
1reaLmenL or unlshmenL for Lhe purpose of provldlng advlsory asslsLance Lo Lhe naLlonal prevenLlve mechanlsm of
Moldova (8eporL for Lhe naLlonal prevenLlve mechanlsm), un uoc CA1/C/MuA/2, 30 May 2013.
70
1he documenLs are avallable aL hLLp://cr[m.org/news/vlew/243.
71
Cne of Lhe maln concerns ralsed by clvll socleLy organlsaLlons ls LhaL Lhe new law requlres Lhe Cmbudsofflce Lo proof 20
years of relevanL professlonal experlence, see Lhe publlc sLaLemenL avallable aL hLLp://cr[m.org/news/vlew/239.
33


represenLaLlves acLlve ln Lhe fleld of LorLure prevenLlon and human rlghLs. 1he workshop wlLh clvll
socleLy organlzaLlons also ensured a broadened awareness and ownershlp of Lhe commenLs Lo Lhe
drafL law developed by Lhe pro[ecL, Lhereby faclllLaLlng clvll socleLy conLrlbuLlon Lo Lhe reform of Lhe
nM. As a consequence of Lhe acLlvlLles lmplemenLed by Lhe pro[ecL ln cooperaLlon wlLh oLher
acLors, Lhe MC! was supporLed by dlfferenL naLlonal and lnLernaLlonal acLors ln a more coherenL,
LargeLed and well-coordlnaLed manner.

Cn a subsLanLlve level, Lhe pro[ecL conLrlbuLed Lo Lhe developmenL of sulLable opLlons for reformlng
Lhe Moldovan nM Lhrough comblnlng comparaLlve experlence from oLher counLrles by Lhe vlenna-
based experL Leam wlLh an ln-depLh undersLandlng of Lhe Moldovan pracLlce provlded by Lhe local
olnLs. 1he ALlas of 1orLure Leam Lhus ensured LhaL Lhe proposals developed wlLhln Lhe pro[ecL were
noL only ln llne wlLh lnLernaLlonal sLandards and besL pracLlces buL also adapLed and sulLable Lo Lhe
Moldovan conLexL, whlch lncreased Lhe llkellhood of Lhelr accepLance by local declslon-Lakers. Many
of Lhe subsLanLlve recommendaLlons and proposals promoLed by Lhe pro[ecL and supporLed by or
coordlnaLed wlLh oLher acLors have been lnLegraLed lnLo Lhe drafL law submlLLed by Lhe MC! for
publlc consulLaLlons. 1he lmpacL LhaL Lhe pro[ecL acLlvlLles had on Lhe formulaLlon of Lhe conLenL of
Lhe drafL law was offlclally recognlzed by Lhe MC! durlng Lhe flnal round-Lable.

lf adopLed and lmplemenLed along Lhe llnes of Lhe mlnlsLerlal proposal, Lhe new legal basls for Lhe
Moldovan nM wlll clarlfy exlsLlng amblgulLles as Lo Lhe enLlLy represenLlng Lhe nM, sLrengLhen Lhe
poslLlon of clvll socleLy experLs, ensure aL leasL de [ure adequaLe fundlng and remuneraLlon of Lhe
mechanlsm and lLs members, and has Lhe poLenLlal of creaLlng a more lndependenL and effecLlve
LorLure prevenLlon body, LrusLed by Lhe general publlc. 1hus, one of Lhe maln recommendaLlons of
Lhe unS81 and oLher anLl-LorLure monlLorlng bodles would have been lmplemenLed. As a
consequence of Lhe envlsaged comprehenslve reform of Lhe nM, Lhe mechanlsm would be
equlpped wlLh Lhe lnsLlLuLlonal condlLlons Lo funcLlon more effecLlvely as a deLerrenL agalnsL LorLure
and lll-LreaLmenL ln Moldova. Moreover - ln a longer Lerm perspecLlve - Lhe Moldovan nM could
become an lmporLanL moLor for Lhe lmplemenLaLlon of necessary sLrucLural reforms ln Lhe
penlLenLlary sysLem, psychlaLrlc lnsLlLuLlons as well as pre-Lrall deLenLlon faclllLles ln llne wlLh
Luropean and lnLernaLlonal human rlghLs sLandards.

36



4. Io||ow-up to the pro[ect and further measures advanc|ng the prevent|on
of torture

uurlng Lhe flnal 8ound 1able ln !anuary 2013, Lhe ALlas of 1orLure pro[ecL lnvlLed all sLaLe and non-
sLaLe acLors and represenLaLlves of Lhe lnLernaLlonal communlLy LhaL had parLlclpaLed ln pro[ecL
acLlvlLles for an evaluaLlon of Lhe resulLs and ouLcome of pro[ecL acLlvlLles. arLlclpanLs Look sLock of
lmprovemenLs reallzed and measures necessary Lo ensure Lhe susLalnablllLy of Lhe progress achleved
as well as fuLure challenges and furLher sLeps envlsaged Lo fully lmplemenL Lhe recommendaLlons of
Lhe unS81. 8ased on Lhe resulLs of Lhe sLock-Laklng exerclse, Lhe followlng secLlons provlde a brlef
overvlew of Lhe measures necessary Lo ensure Lhe susLalnablllLy of ouLcomes achleved by Lhe ALlas
of 1orLure pro[ecL and Lo furLher advance ln Lhe prevenLlng and combaLLlng LorLure and lll-LreaLmenL
ln Moldova.


4.1. Cont|nu|ng the f|ght aga|nst |mpun|ty

WlLh Lhe adopLlon of Lhe amended CC8M, a sLrong legal framework has been puL ln place for Lhe
effecLlve flghL agalnsL lmpunlLy. Powever, Lo ensure LhaL Lhe new provlslons exerL Lhe envlsaged
deLerrenL effecL, Lhe level of punlshmenLs for cruel, lnhuman and degradlng LreaLmenL ln ArLlcle 166
1

para. (3) and (4) of Lhe CC8M should be changed ln accordance wlLh Lhe orlglnal verslon of Lhe
mlnlsLerlal drafL proposal ln order Lo ensure LhaL lll-LreaLmenL below Lhe Lhreshold of LorLure ls
effecLlvely punlshed wlLh a prlson senLence !" '00!#!1" Lo a moneLary flne. Cnly lf Lhe senLenclng
level for lll-LreaLmenL Lakes lnLo accounL Lhe gravlLy of Lhe offence (dlsLlncL from oLher forms of
mlsconducL by publlc offlclals, such as excess of power), a cons|stent approach aga|nst |mpun|ty of
perpetrators of torture and |||-treatment wlll be posslble. CLherwlse, Lhe lmpacL of Lhe amended
legal framework agalnsL lmpunlLy ls slgnlflcanLly reduced and runs Lhe rlsk of allowlng for loopholes
ln Lhe senLenclng pracLlce wlLh Lhe consequence of poLenLlally even more lenlenL punlshmenLs Lhan
under Lhe prevlously appllcable provlslons. 1o ensure LhaL Lhe amended legal framework bears frulLs
ln pracLlce, Lralnlngs for all acLors lnvolved ln Lhe flghL agalnsL lmpunlLy (defence lawyers,
prosecuLors and [udges) should lnclude reference Lo Lhe new legal quallflcaLlons of Lhe offences of
LorLure and oLher forms of lll-LreaLmenL and Lhe accordlng senLenclng sLrucLure.

WlLh Lhe meLhodologlcal recommendaLlons for anLl-LorLure prosecuLors adopLed as mandaLory
lnLernal regulaLlon, an lmporLanL sLep has been achleved wlLh vlew Lo changlng Lhe prosecuLorlal
pracLlce Lowards more effecLlve lnvesLlgaLlons and prosecuLlons of LorLure cases ln llne wlLh Lhe
requlremenLs of lnLernaLlonal recommendaLlons and Lhe numerous [udgmenLs of Lhe LCLP8. ln order
Lo ensure Lhelr appllcaLlon ln pracLlce, lL would be hlghly deslrable lf Lhe recommendaLlons are
sysLemaLlcally lnLegraLed lnLo Lralnlng of prosecuLors boLh on an lnLernal level as well as lnLo Lhe
capaclLy developmenL carrled ouL or funded by lnLernaLlonal acLors. A promlslng ldea followlng-up Lo
Lhe meLhodologlcal recommendaLlons ls an lnlLlaLlve planned by unu Lo develop and addlLlonal seL
of guldellnes for prosecuLors speclflcally addresslng lnvesLlgaLlons lnLo cases of LorLure and lll-
LreaLmenL ln psychlaLrlc lnsLlLuLlons. Powever, wlLhouL |nst|tut|ona| reform of the system of ant|-
torture prosecutors almlng aL enhanclng Lhelr lndependence, operaLlonal capaclLles and resources,
Lhe amended legal framework and sLrengLhened meLhodology wlll remaln dead leLLer. ln parLlcular,
lL wlll be lndlspensable LhaL Lhe lndependence of Lhe anLl-LorLure prosecuLors from law enforcemenL
servlces ls ensured, lnLer alla, by ensurlng LhaL local prosecuLors can work fully lndependenLly from
local law enforcemenL bodles, by provldlng Lhem wlLh Lhelr own operaLlonal sLaff, fully Lralned and
properly furnlshed wlLh forenslc equlpmenL Lo carry ouL prompL, Lhorough and lmparLlal
lnvesLlgaLlons ln llne wlLh Lhe lsLanbul roLocol. 1he recommendaLlons gaLhered ln Lhe CuLcome
uocumenL of Lhe LxperL Conference agalnsL lmpunlLy lmplemenLed by Lhe ALlas of 1orLure pro[ecL
may serve as guldellnes ln Lhe lnsLlLuLlonal reform process Lo furLher advance ln Lhe lmplemenLaLlon
37


of Lhe unS81's recommendaLlon on Lhe creaLlon of a fully lndependenL mechanlsm for Lhe
lnvesLlgaLlon of LorLure allegaLlons.

As a complemenLary sLraLegy Lo Lhe flghL agalnsL lmpunlLy, lL ls Lo be hoped LhaL Lhe lnlLlal resulLs
achleved by Lhe ALlas of 1orLure pro[ecL wlLh vlew Lo ralslng awareness on Lhe lmporLance of lnLernal
accounLablllLy procedures and Lhelr relaLlonshlp wlLh Lhe crlmlnal [usLlce process wlll LranslaLe lnLo a
strengthened organ|zat|ona| and procedura| framework for |n-serv|ce |nvest|gat|ons wlLhln Lhe
MlnlsLry of lnLernal Affalrs. ln parLlcular, lL should be ensured LhaL a reformed organlzaLlonal seL-up
of Lhe ulrecLoraLe for lnLernal lnvesLlgaLlon and SecurlLy guaranLees sufflclenL lmparLlallLy and
compeLences wlLhln Lhe bureaucracy Lo exerclse effecLlve overslghL over MlA personnel. Cnly lf
lnLernal accounLablllLy sLrucLures are sysLemaLlcally malnsLreamed lnLo Lhe reform of Lhe MlnlsLry of
lnLernal Affalrs wlll lL be llkely LhaL reform measures, such as Lhe adopLlon of lnLernal regulaLlons Lo
enhance compllance wlLh lnLernaLlonal human rlghLs sLandards, bear frulLs ln Lhe operaLlonal
pracLlce of Lhe pollce. Slmllar reforms would be advlsable wlLhln Lhe enlLenLlary ueparLmenL. WlLh
respecL Lo Lhe complemenLary relaLlonshlp beLween crlmlnal and dlsclpllnary procedures, Lhe
recommendaLlons developed wlLhln Lhe ALlas of 1orLure pro[ecL as well as by Lhe follow-up pro[ecL of
Lhe CSCL Mlsslon Lo Moldova may serve as guldance Lo amend Lhe leglslaLlve framework on Lhe Llme
perlods and sLaLuLes of llmlLaLlons for ln-servlce lnvesLlgaLlons and Lhe appllcaLlon of dlsclpllnary
sancLlons.

AnoLher lmporLanL mllesLone recommended by Lhe unS81 ln Lhe flghL agalnsL lmpunlLy ls Lhe
estab||shment of conf|dent|a| and access|b|e comp|a|nts mechan|sm and the effect|ve protect|on of
v|ct|ms and w|tnesses from repr|sa|s. 1hls recommendaLlons has so far noL been comprehenslvely
Laken up. Whlle dlfferenL avenues for complalnLs are avallable wlLhln dlfferenL lnsLlLuLlons, Lhe
respecLlve sysLems of managlng complalnLs and ensurlng Lhelr prompL referral Lo Lhe compeLenL
auLhorlLles need Lo be revlewed Lo ensure Lhe proLecLlon of Lhe rlghLs of vlcLlms. Several safeguards
recommended by Lhe unS81 and oLher lnLernaLlonal and reglonal LorLure monlLorlng bodles should
be Laken lnLo accounL ln Lhls conLexL: 1o llmlL Lhe rlsk of reprlsals, lL has Lo be ensured LhaL alleged
vlcLlms are Lransferred Lo a dlfferenL deLenLlon faclllLy, lf Lhey would oLherwlse remaln wlLhln Lhe
reach of Lhe alleged perpeLraLor or hls/her colleagues or superlors. ln addlLlon, Lhe procedural
framework for Lhe lnvesLlgaLlon of allegaLlons of LorLure or lll-LreaLmenL agalnsL publlc offlclals
should be changed so as Lo sLlpulaLe Lhe auLomaLlc suspenslon of Lhe suspecLed persons from duLy
on full pay.

AnoLher lmporLanL aspecL concerns Lhe ava||ab|||ty and access to |ndependent forens|c expert|se by
vlcLlms of LorLure, whlch should be aLLrlbuLed Lhe same evldenLlary value as forenslc documenLs
requesLed by Lhe prosecuLor. ln Lhls respecL, lmporLanL lmprovemenLs have been achleved Lhrough a
pro[ecL lmplemenLed by unu almlng aL dlverslfylng Lhe avallablllLy of forenslc experLs,
sLrengLhenlng Lhelr capaclLles and amendlng Lhe respecLlve provlslon ln Lhe CC8M on Lhe
admlsslblllLy of medlcal and oLher documenLs submlLLed by vlcLlms. Powever, furLher supporL should
be provlded Lo clvll socleLy organlzaLlons provldlng lndependenL and professlonal documenLaLlon of
ln[urles, whlch ls affordable and dlrecLly accesslble by vlcLlms of LorLure.


4.2. Iurther strengthen|ng |ega| safeguards

Whereas Lhe amendmenLs Lo Lhe CC8M adopLed ln Lhe course of 2012 lncluded several
lmprovemenLs relaLlng Lo safeguards and Lhe proLecLlon of rlghLs of vlcLlms and wlLnesses ln crlmlnal
proceedlngs, Lhe mosL lmporLanL sLrucLural safeguards agalnsL LorLure and lll-LreaLmenL repeaLedly
recommended by Lhe unS81 and oLher lnLernaLlonal and reglonal LorLure monlLorlng bodles are yeL
Lo be lmplemenLed. 1hey concern Lhe llmlLaLlon of pollce cusLody Lo a maxlmum of 48 hours, afLer
whlch Lhe suspecLed person concerned has Lo be broughL before a [udge and elLher released or
lmmedlaLely Lransferred from Lhe auLhorlLy of Lhe pollce Lo a pre-Lrlal deLenLlon faclllLy under a
38


dlfferenL auLhorlLy. 1he Lransfer of Lhe suspecLs Lo a dlfferenL auLhorlLy Lhan Lhe one lnvesLlgaLlng
Lhe case slgnlflcanLly reduces Lhe rlsk of LorLure and lll-LreaLmenL. Powever, Lhe Lemporary deLenLlon
lsolaLors (lus), where suspecLs are held pendlng Lhe lnvesLlgaLlons are slLuaLed wlLhln pollce
commlssarlaLs. 1he declslon of Lhe Moldovan arllamenL ln May 2011 Lo Lransfer Lhe auLhorlLy over
lus from Lhe MlnlsLry of lnLernal Affalrs Lo Lhe MlnlsLry of !usLlce so far remalns wlLhouL effecL
pendlng Lhe bulldlng of new arresL houses, whlch has been repeaLedly delayed. 1he second sLrucLural
recommendaLlon concerns Lhe lack of lnsLlLuLlonal lndependence of Lhe para-medlcal servlce
(feldshers") employed ln Lhe penlLenLlary lnsLlLuLlons and pollce commlssarlaLs. Whlle Lhe exlsLence
of a permanenL para-medlcal servlce, Lasked Lo ensure medlcal examlnaLlon upon each enLry or
referral, ls an lmporLanL safeguard agalnsL LorLure and lll-LreaLmenL, Lhe effecLlveness of Lhls
measure ls lmpeded by Lhe sub-ordlnaLlon of Lhe para-medlcs Lo Lhe auLhorlLy of Lhe head of Lhe
deLenLlon faclllLy, Lhus rlsklng confllcLs of lnLeresLs. 1o ensure Lhe lndependence and compllance
wlLh hlghesL professlonal sLandards, Lhe auLhorlLy over para-medlcs should be excluslvely aLLrlbuLed
Lo Lhe MlnlsLry of PealLh. 1he speedy lmplemenLaLlon of Lhese Lwo lnsLlLuLlonal safeguards would
slgnlflcanLly conLrlbuLe Lo reduclng Lhe sLrucLural condlLlons conduclve Lo LorLure and lll-LreaLmenL.

WlLh regard Lo Lhe lmporLanL safeguard of access Lo a lawyer, Lhe legal framework ls ln compllance
wlLh Lhe lnLernaLlonal sLandards. Powever, ln pracLlce Lhe sysLem of legal ald lawyers and publlc
defenders does noL sufflclenLly guaranLee avallablllLy of dlllgenL and well Lralned lawyers. As an
lmporLanL measure Lo ensure effecLlve access Lo [usLlce, Lhe capaclLy of Lhe bar assoclaLlon should be
sLrengLhened Lo fully perform lLs Lasks concernlng Lhe promoLlon of eLhlcal sLandards, professlonal
pracLlces and capaclLles as well as ensurlng adequaLe dlsclpllnary procedures.


4.3. Lnsur|ng the effect|ve funct|on|ng of the NM

1he proposal of Lhe MlnlsLry of !usLlce for Lhe new law on Lhe eople's AdvocaLe (Cmbudsperson),
lncludlng a revlsed legal basls of Lhe nM as submlLLed Lo Lhe Moldovan leglslaLor, creaLed Lhe legal
condlLlons for remedylng exlsLlng deflclencles ln Lhe regulaLory and organlzaLlonal framework of Lhe
mechanlsm and lmplemenLlng Lhe recommendaLlon of Lhe unS81 relaLlng Lo Lhe effecLlve
funcLlonlng of Lhe nM ln pracLlce. lL ls Lo be hoped LhaL Lhe law adopLed by Lhe Moldovan
arllamenL does noL fall shorL of Lhe mlnlsLerlal drafL law and wlll effecLlvely seL Lhe sLage for Lhe
esLabllshmenL of a more funcLlonal, lndependenL, and professlonal and fully funded naLlonal LorLure
prevenLlon body. Moreover, Lhe new members of Lhe nM wlll requlre pracLlcal Lralnlng on Lhe
exerclse of Lhelr mandaLe. A furLher polnL Lo be addressed ln Lhe work of Lhe fuLure mechanlsm wlll
be lLs cooperaLlon wlLh Lhe local monlLorlng commlsslon, whlch would be ldeally sulLed Lo
complemenL Lhe prevenLlve mandaLe of Lhe nM wlLh a focus on dlrecL humanlLarlan asslsLance Lo
deLalnees ln need.

39
































vlenna, Chlslnau
uecember 2013





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