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- 476. The Committee has already examined this case on three occasions, the
- last being at its February 1988 meeting, when it presented an interim report.
- (See 254th Report, paras. 351-369, approved by the Governing Body at its 239th
- Session.) Since then the Government transmitted certain information and
- observations in a communication dated 30 April 1988, received in the ILO only
- on 20 May 1988. Subsequently, in a letter dated 30 May 1988 the International
- Confederation of Free Trade Unions (ICFTU) presented new allegations.
- 477. Paraguay has ratified the Freedom of Association and Protection of the
- Right to Organise Convention, 1948 (No 87), and the Right to Organise and
- Collective Bargaining Convention, 1949 (No 98).
A. Previous examination of the case
A. Previous examination of the case- 478. The allegations which remain outstanding in this case relate to the
- detention of trade union activists and leaders whose names are supplied by the
- complainants, to violent repression of peaceful trade union demonstrations,
- and to acts of interference and pressure exerted against trade union
- organisations and their leaders.
- 479. In particular the complainants referred to the climate of violence and
- repression affecting the trade union movement in 1986 and 1987 in the
- hospital, banking, transport, press, teaching and agricultural sectors.
- 480. The complainants referred to the questioning of doctors during a strike
- which took place on 25 April 1986 at the Clinicas Hospital (namely Dr. Carlos
- Filizzola and Messrs. José Bellasaó, Ursino Barrios, Anibal Carrillo and Juan
- Masi), the ban on 1986 May Day celebrations, the subsequent violent repression
- and large number of persons injured by the forces of order and taken to
- hospital, the attacks perpetrated on 3 May by some 150 militants of the
- Colorado party who were authorised to enter a hospital and are said to have
- struck doctors and nurses who were attending the injured, and, lastly, the
- destruction of the anduti radio station by the same group on the ground that
- this radio supported the workers and their organisations during the trade
- union demonstrations. Subsequently the complainants stated that the doctors
- who had been arrested during the strike had been released for lack of evidence
- of their having committed an offence.
- 481. The complainants also referred to a police attack on the headquarters of
- the Federation of Bank Employees (FETRABAN) in April 1986, and again in March
- 1987, and to the detention for a number of days in March 1987 of the General
- Secretary of the Workers' Inter- Trade Union Movement (MIT), Mr. Victor Baez,
- during a meeting of his organisation. Mr. Baez was subsequently released.
- 482. The complainants also alleged that in March 1987 Raquel Aquino, leader
- of secondary-school students, was held at the Pastor prison for having
- expressed her solidarity with the trade union movement, and that Margarita
- Cappuro de Seiferheld, the leader of the MIT, was obliged to give up her post
- as philosophy teacher at the national girls' college since she was forbidden
- to teach.
- 483. In addition the complainants denounced the arrest, in October 1985 at
- Tacumbu prison, of Mr. Sebastián Rodríguez, General Secretary of the Bus
- Drivers' Union (Route No. 21), for having organised a music festival to
- collect money on behalf of his unemployed colleagues, and the arrest of trade
- union leader Marcelino Corazón Medina, on 20 September 1985, then from 1 May
- to 3 June 1986 and again from 27 February to 30 May 1987, at Ononnondivepa,
- where he was tortured.
- 484. Subsequently, in a communication of 23 October 1987, the International
- Confederation of Free Trade Unions (ICFTU) stated that on 20 October 1987 the
- police used violence to prevent the holding of a general meeting of the
- National Union of Construction Workers, violently charging the members and
- injuring a large number who had to be rushed to medical stations.
- 485. The Government did not reply to the repeated requests concerning the
- serious allegations made against it by the complainant organisations.
- Consequently, in the absence of a denial of these allegations on the part of
- the Government, the Committee could only conclude that there had been serious
- violations of the principles of freedom of association in respect of these
- various complaints.
- 486. In these circumstances the Governing Body, on the recommendation of the
- Committee, adopted the following interim conclusions at its February 1988
- Session:
- a) The Committee strongly regrets that the Government has not replied to the
- repeated requests for information sent to it. It expresses its serious concern
- at the allegations in respect of repression of the trade union movement in
- 1986 and 1987 and, in particular, the arrest of trade union militants and
- leaders named by the complainants, the ban on peaceful trade union
- demonstrations on May Day which were violently repressed, and the interference
- in the affairs of trade union organisations and pressure brought to bear on
- them and on union members.
- b) The Committee recalls that a free and independent trade union movement
- cannot develop in an atmosphere of insecurity and fear.
- c) The Committee urges the Government to take measures to ensure that the
- authorities concerned are given appropriate instructions to eliminate the
- danger for trade union activities represented by such measures as the arrest
- of trade unionists, the banning of trade union demonstrations on May Day and
- the holding of trade union meetings.
- d) The Committee requests the Government to take measures to guarantee
- respect for freedom of association in law and in fact, in accordance with the
- obligations arising from Conventions Nos. 87 and 98, ratified by Paraguay, and
- to keep it informed of these measures, in particular stating whether judicial
- inquiries have been undertaken following the repression which took place on
- hospital premises on 3 May 1986, in order to determine who is responsible and
- to punish the guilty parties.
- B. Further allegations
- 487. In a telegram dated 30 May 1988, the ICFTU alleges that the following
- agricultural workers' leaders were arrested: Marcelino Corazón Medina, Pedro
- Gamana, Carmelino Torales, Acadio Flores and Teodoro González. Furthermore,
- Fidencio Rojas, General Secretary of the Union of Workers of Fenix SA, is said
- to have been threatened by the security guards of the enterprise for which he
- works.
- C. The Government's reply
- 488. In a letter dated 30 April 1988, which reached the ILO on 20 May 1988,
- the Government supplied information on some of the outstanding allegations.
- 489. As regards the allegation concerning the arrest of Marcelino Corazón
- Medina in 1985 and again in 1987, and the torture to which he is said to have
- been subjected, the Government acknowledges that he was prosecuted in 1985 and
- 1987 for infringing Act No. 209 concerning defence of the public peace and
- individual freedom but affirms that, contrary to what the complainants
- maintain, he was not tortured and that at all times the authorities treated
- him in accordance with the law. According to the Government, Mr. Medina
- enjoys full freedom in the country although he is a notorious agitator who
- passes himself off as a trade unionist of a fictitious union called the
- Committee of "Agricultural Producers" or of "Landless Peasants".
- 490. As regards the allegation concerning the arrest in 1986 of Mr. Sebastián
- Rodríguez, former General Secretary of the Bus Drivers' Union (Route No. 21),
- the Government states that Mr. Rodríguez is no longer employed by the
- undertaking, that he no longer belongs to the union and that he is not
- detained. According to the Government, he was dismissed and has lodged an
- appeal with the courts.
- 491. As regards the detention in 1986 of Dr. Carlos Filizzola and of José
- Bellasaó, Ursino Barrios, Anibal Carrillo and Juan Masi in the Clinicas
- Hospital affair, the Government states that these persons are public employees
- and that Dr. Filizzola led public demonstrations with a view to forcing the
- authorities to grant pay increases.
- 492. Going into further detail, the Government adds that the hospital in
- question is a university hospital coming under the faculty of medicine of the
- National University of Asunción and that, as such, it is financed from the
- national budget. The Government states that it had moreover, when budgetary
- resources permitted, granted considerable pay increases to the workers in this
- hospital who are public employees and consequently fall outside the scope of
- the Paraguayan Labour Code (section 2) but are covered by Act No. 200/70 in
- respect of the public service.
- 493. Nevertheless, the Government goes on to say that under the leadership of
- Dr. Filizzola these public employees persisted with pay claims that were not
- in line with the percentage authorised by the Government under the general
- budget for 1986 and that their claims were not submitted through the lawful
- channels and relevant institutions, i.e. by means of the citizens' right of
- petition. Instead they took the form of a street disturbance. Faced with this
- situation the police were obliged to intervene to restore public order and
- social peace.
- 494. The Government adds that Dr. Filizzola was involved in criminal
- proceedings that were brought against him before the Criminal Court of First
- Instance of the Ninth Chamber by a certain Eladio Ramón Penayo and that he was
- charged with having infringed Act No. 294 concerning the defence of the
- democracy and Act No. 209/70 concerning the defence of the public peace and
- individual freedom, issued under section 99 of the Code of Penal Procedure. In
- Ruling No. 677 of 17 December 1986, the judge, having considered the evidence
- in the case, ordered that Dr. Filizzola be held in preventive detention and
- then, in a further ruling (No. 715 of 23 December 1986) lifted this measure.
- At present, the Government states, Dr. Filizzola is freely exercising his
- profession as a doctor and enjoys his full rights as a citizen.
- 495. The court rulings concerning this case are enclosed with the
- Government's communication. It can be seen from these rulings that Dr.
- Filizzola was accused by one of the participants in the demonstration of 28
- November 1986, Mr. Penayo, of instigating the overthrow of the Government, of
- describing the President of the Republic, General Alfredo Stroessner, as a
- dictator and of systematically imposing communist doctrine by creating
- divisions between citizens, together with disturbances, agitation and other
- destabilising activities. According to Mr. Penayo, Dr. Filizzola had written
- that "we find ourselves in a situation of grave political and economic crisis
- under this dictatorship that has been in force for 32 years", a statement
- which Mr. Penayo considers absurd since, according to him, free and democratic
- general elections are held in the country periodically. Dr. Filizzola is also
- said to have stated that "dialogue is not for any dictatorship; dictatorships
- are not open to dialogue with anyone. Consequently we must realise that what
- is essential now is to mobilise to overthrow the dictatorship". According to
- Court Decision No. 677 of 17 December 1986, Dr. Filizzola incurred a sentence
- of five years' imprisonment for instigating an armed uprising against the
- constitutional authorities in order to replace the republican democratic
- system in force by the communist system (section 1 of Act No. 294 concerning
- the defence of democracy) and for spreading communist doctrine (section 2).
- Under this Act, where offences are committed by means of the press, radio,
- etc., the publication, radio programme, etc., are suspended for between one
- and six months and closed down if the offence is repeated (section 8).
- 496. Nevertheless, in Ruling No. 715 of 23 December 1986, communicated by the
- Government, the judge decided, after studying the evidence in the case, that
- there was insufficient proof to change the preventive detention to a prison
- sentence and ordered Dr. Filizzola's release.
- 497. As regards allegations concerning the ban on the holding of May Day
- celebrations in 1986, the Government strongly refutes the complainants'
- allegation that the demonstration was repressed and that there had been
- casualties.
- 498. As regards the allegations that members of the Colorado party struck
- doctors and nurses who were treating injured persons on 3 May 1986 in the
- Clinicas Hospital and that they destroyed the anduti radio station on the
- ground that this radio supported workers and their organisations in their
- trade union demonstrations, the Government makes no comment on the first
- allegation but recognises that the anduti radio transmitter was closed down on
- the decision of the national telecommunications administration. It denies,
- however, that militants of the Colorado party destroyed the anduti radio
- staton as maintained by the ICFTU. It affirms that the radio premises are in
- perfect condition and are being used by the opposition for broadcasts in which
- numerous persons take part, including representatives of outside political
- parties.
- 499. As regards the complaint of the Workers' Inter-Trade Union Movement
- (MIT) that Margarita Capurro de Seiferheld, leader of the MIT, was forced to
- give up her teaching post at the girls' college, the Government explains that
- this penalty was imposed solely because of irregularities that had been
- committed by this person in the course of her duties, contravening teaching
- standards and the national provisions in respect of education, as stated by
- the Ministry of Education and Religion.
- 500. As regards Mr. Victor Baez, General Secretary of the MIT, who is said to
- have been detained for a number of days in March 1987 during the meeting of
- his organisation, the Government firmly denies that he was detained on 18
- March 1987. It explains that he was merely summoned to appear before the chief
- of police for public order in the capital for questioning concerning acts
- which had disturbed public order and peace since he had claimed to "disregard
- the legal authorities of the country" and had "shown disrespect for social
- standards", which has nothing to do with his struggle to defend trade union
- interests. According to the Government, creating disturbances in the streets
- and upsetting the minds of peaceful citizens is not how one defends the
- workers' trade union interests. Once the formalities for which he had been
- summoned had been completed, he left the police premises on the decision of
- the authorities and not because of pressure exerted from inside or outside by
- the ICFTU. At no time was he kept in a police cell; nor was he detained for as
- long as the complainants alleged.
- 501. As regards this trade union leader, the Government also states that he
- is exercising his civil rights as is proven by the fact that in 1987 and 1988
- he was able to go to Rio de Janeiro and to Europe as well as to the World
- Congress of the ICFTU in Australia, that his militant activities take place in
- public and that he is a member of an opposition political party of fascist
- origin.
D. The Committee's conclusions
D. The Committee's conclusions
- 502. The Committee takes note of all the information and observations
- furnished by the Government on some of the allegations still outstanding in
- this case.
- 503. The Committee nevertheless observes that the Government has not
- commented in detail on several serious allegations made against it by the
- complainants, especially concerning the incidents said to have taken place at
- the Clinicas Hospital on 3 May 1986, that it has not denied that some members
- of the Colorado party, on hospital premises, struck doctors and nurses who
- were tending patients injured by the forces of order when a trade union
- demonstration was repressed; moreover, the Government has furnished no
- information on the allegation concerning the arrest in March 1987 of Raquel
- Aquino, a secondary-school students' leader, said to have been detained in the
- Pastor prison for having expressed her solidarity with the trade union
- movement.
- 504. Finally the Government has not commented in detail on the ICFTU's
- allegations dated 30 May 1988 that several agricultural workers' leaders
- (whose names are given), including Marcelino Corazón, were again arrested in
- May 1988 and that the General Secretary of the Union of Workers of Fenix SA
- were threatened by the security guards of the undertaking.
- 505. As regards the points on which the Government has supplied detailed
- replies, the Committee observes, firstly, concerning the agricultural workers'
- leader Marcelino Corazón Medina, that the Government recognises that he was
- prosecuted in 1985 and 1987 for infringing Act No. 209 concerning the defence
- of public peace and individual freedom but has not supplied information on the
- actual offences he is said to have committed. The Government merely states
- that this person is a notorious agitator who tries to pass himself off as a
- trade unionist in a fictitious trade union organisation.
- 506. In a number of cases where the complainants alleged that workers or
- trade union leaders had been arrested for trade union activities, and the
- government replies amounted to general denials or were simply to the effect
- that the arrests were made on the grounds of subversive activites, for reasons
- of internal security or for common law crimes, the Committee has followed the
- rule that the governments concerned should be requested to submit further and
- as precise information as possible concerning the arrests, particularly in
- connection with the legal or judicial proceedings instituted as a result
- thereof and the result of such proceedings, in order to be able to make a
- proper examination of the allegations. (See Digest of decisions and principles
- of the Freedom of Association Committee of the Governing Body of the ILO,
- para. 115.)
- 507. In the present case, since Act No. 209 concerning the defence of public
- peace and individual freedom permits the imposition of prison sentences for
- offences based on one's opinion, and in view of the fact that, according to
- the ICFTU's allegations, the agricultural workers' leader Marcelino Corazón
- Medina and four of his companions were again arrested on 18 May 1988, the
- Committee requests the Government to supply detailed information on the actual
- charges brought against these leaders, to communicate the court judgements in
- the case with the grounds adduced therefore, if they have been sentenced, and
- to state if they have now been released.
- 508. The Committee observes, secondly, that the Government has not commented
- in detail on the allegation that Mr. Sebastián Rodríguez, former General
- Secretary of the Bus Drivers' Union (Route No. 21) was arrested in 1986, but
- has confined itself to stating that this person is not detained, that he is
- not employed in the undertaking and that he no longer belongs to the union.
- The Government does, however, acknowledge the fact that he was dismissed and
- has appealed against his dismissal to the courts.
- 509. The Committee recalls, in general, that no person should be
- discriminated against in his employment because of his trade union membership
- or lawful trade union activities and that appropriate measures should be
- adopted to guarantee the free exercise of trade union rights, accompanied by
- measures for the protection of workers against acts of anti-union
- discrimination in their employment.
- 510. Since the Government states that this person was dismissed and has
- appealed against his dismissal to the courts, the Committee requests the
- Government to keep it informed of the outcome of this appeal.
- 511. Concerning the strike which took place at the Clinicas Hospital, the
- Committee notes the Government's statement that the workers in this hospital
- are only public employees who do not enjoy the right to organise and its
- explanation that these persons had asked for pay increases in the course of
- public demonstrations, thus contravening Act No. 200 in respect of the public
- service instead of availing themselves of the citizens' right of petition.
- 512. The Committee considers that this aspect of the case raises two
- questions: firstly that of the right to organise of public employees. On this
- point, the Committee recalls that in accordance with Convention No. 87
- ratified by Paraguay, public employees, like any other workers, should have
- the right to organise for trade union purposes (Article 2 of the Convention).
- Moreover, according to Convention No. 98, only public servants engaged in the
- administration of the State can be excluded from the right to negotiate
- conditions of employment collectively (Article 6 of the Convention). The
- employees of a public hospital, namely the doctors and nurses working there,
- cannot be considered to be "public servants engaged in the administration of
- the State".
- 513. Consequently, the Committee - as has the Committee of Experts on the
- Application of Conventions and Recommendations - once again requests the
- Government to ensure the amendment of its legislation, especially Act No. 200
- respecting the public service (sections 31 and 36) which allows public
- employees the right to associate only for cultural and social purposes and
- forbids them to adopt collective resolutions against measures taken by the
- competent authorities. The Committee invites the Government to adopt specific
- provisions granting the right to organise to public employees and to set up
- machinery for settling collective disputes in the public service in general
- and in the hospital sector in particular in which the persons concerned will
- have confidence.
- 514. Secondly, there is the question of the right of the employees of a
- public hospital to go on strike. In this respect the Committee observes,
- according to the allegations, that the persons concerned were prosecuted for
- having resorted to a strike to secure pay increases while they were carrying
- out their duties in a public hospital. The Committee has already had the
- occasion to state that the right to strike may indeed be restricted or even
- prohibited in the public service (public employees being those who act as
- agents of the public authorities) or in essential services in the strict sense
- of the term (i.e. services whose interruption would endanger the life,
- personal safety or health of the whole or part of the population). In previous
- cases the Committee has considered the hospital sector to constitute an
- essential service. (See 217th Report, Case No. 1091 (India), para. 443, and
- Case No. 1099 (Norway), para. 467.)
- 515. Nevertheless, the Committee has stated on many occasions that where the
- right to strike has been restricted or refused in a service considered to be
- essential, workers in this service should enjoy adequate protection so as to
- compensate for the restrictions imposed on their freedom of action as regards
- disputes in the said service. In this particular case, the restriction of the
- right to strike of doctors and nurses in the Clinicas Hospital should be
- offset by appropriate, impartial and speedy conciliation and arbitration
- procedures in which the persons concerned can take part at every stage and in
- which the awards, once made, are fully and promptly implemented, as the
- Committee had the occasion to state in a previous case. (See 236th Report,
- Case No. 1263 (Japan), para. 270.)
The Committee's recommendations
The Committee's recommendations
- 516. In the light of its foregoing interim conclusions, the Committee invites
- the Governing Body to approve the following recommendations:
- a) The Committee notes with interest that the Government has replied to
- certain allegations, but regrets that it has as yet supplied no observations
- on several of the serious allegations made against it by the complainants.
- b) Consequently, on the factual issues, the Committee once again requests
- the Government to state whether it is correct that members of the
- pro-Government party assaulted doctors and nurses on hospital premises who
- were treating persons injured by the forces of order when a trade union
- demonstration was repressed on 3 May 1986, as affirmed by the ICFTU in a
- communication of 5 May 1986, and if so to state whether a judicial inquiry has
- been instituted following this repression to determine who is responsible.
- c) The Committee also requests the Government to reply to the ICFTU's
- allegations dated 3 April 1987 and 30 May 1988 respectively concerning the
- imprisonment in March 1987 of Raquel Aquino, a leader of secondary-school
- students, in the Pastor prison and the arrest, on 18 May 1988, of agricultural
- worker's leaders Marcelino Corazón Medina, Pedro Gamana, Carmelino Torales,
- Acadio Flores and Teodoro González. In particular, it requests the Government
- to state precisely on what grounds they were imprisoned, to furnish the text
- of the court judgements concerning them if they have been tried, and to
- specify whether these persons have since been released.
- d) The Committee requests the Government to keep it informed on the outcome
- of the appeal against dismissal lodged by the trade union leader Sebastián
- Rodríguez, former General Secretary of the Bus Drivers' Union (route No. 21)
- who is said to have been dismissed in 1986 for trade union reasons.
- e) On the legal issues, as regards the denial to public employees of the
- right to organise in trade unions and the restrictions on their freedom to
- negotiate their conditions of employment collectively, the Committee requests
- the Government to ensure the amendment of Act No. 200 in respect of the public
- service (sections 31 and 36) so as to include specific legislative provisions
- on the right to organise of public employees and to introduce machinery for
- the settlement of collective disputes in the public service in which the
- persons concerned will have confidence.
- f) As regards the ban on strikes by doctors and nurses employed in a public
- hospital, the Committee requests the Government to ensure the adoption of
- specific provisions to compensate, by introducing appropriate conciliation and
- arbitration procedures, for the fact that there is no right to strike in this
- essential service.
- g) The Committee draws the attention of the Committee of Experts on the
- Application of Conventions and Recommendations to the legislative aspects of
- this case regarding Conventions Nos. 87 and 98.