AS TO THE ADMISSIBILITY OF
Application No. 27249/95
by Abbas LWANGA and Ali SEMPUNGO
against Sweden
The European Commission of Human Rights sitting in private on
14 September 1995, the following members being present:
MM. S. TRECHSEL, President
H. DANELIUS
C.L. ROZAKIS
E. BUSUTTIL
G. JÖRUNDSSON
A.S. GÖZÜBÜYÜK
A. WEITZEL
J.-C. SOYER
H.G. SCHERMERS
Mrs. G.H. THUNE
Mr. F. MARTINEZ
Mrs. J. LIDDY
MM. L. LOUCAIDES
J.-C. GEUS
M.P. PELLONPÄÄ
B. MARXER
M.A. NOWICKI
I. CABRAL BARRETO
B. CONFORTI
N. BRATZA
I. BÉKÉS
J. MUCHA
E. KONSTANTINOV
D. SVÁBY
G. RESS
A. PERENIC
C. BÎRSAN
P. LORENZEN
Mr. H.C. KRÜGER, Secretary to the Commission
Having regard to Article 25 of the Convention for the Protection
of Human Rights and Fundamental Freedoms;
Having regard to the application introduced on 3 May 1995 by
Abbas Lwanga and Ali Sempungo against Sweden and registered on
4 May 1995 under file No. 27249/95;
Having regard to the reports provided for in Rule 47 of the Rules
of Procedure of the Commission;
Having regard to the observations submitted by the respondent
Government on 24 May 1995 and the observations in reply submitted by
the applicants on 16 June 1995;
Having deliberated;
Decides as follows:
THE FACTS
The applicants are citizens of Uganda. They are half-brothers,
both born in 1978. They are currently receiving care in a child and
youth psychiatric clinic in Umeå, Sweden. They are represented by
Ms. Lena Isaksson, a lawyer there.
The facts of the case, as submitted by the parties, may be
summarised as follows.
Particular circumstances of the case
The applicants have the same father and different mothers. The
first applicant also has another brother, who is younger. The first
applicant lived with his parents up to the age of six and then moved
to a boarding school in the district of Mukomo. At the age of fourteen
he moved to a boarding school in the district of Luvero. He spent the
school holidays with his mother, brother and half-brother.
The second applicant lived with his mother up to the age of five,
when he moved to a boarding school outside Kampala. At the age of
thirteen he moved to a boarding school in the district of Mpigi. During
the school holidays he would visit his mother. Occasionally, his father
would visit him. After he moved to the second boarding school he would
spend the holidays with his father and his family.
The applicants' father would occasionally send messengers to the
applicants' schools, bringing letters, money and presents from him.
The applicants arrived in Sweden on 27 August 1993. On arrival
in Sweden the applicants immediately applied for asylum. To the Swedish
immigration authorities they gave the following account of the reasons
for their departure from Uganda.
The applicants had both known of their father's political
activities within the dissident faction NALU. He had fled to Kenya in
August 1993. While staying at their respective boarding schools the
applicants had, on 18 August 1993, been approached by members of NALU
who had shown them a letter from their mothers. The letter had told
them to leave Uganda immediately, since their mothers were wanted by
the authorities. The applicants had first been taken to Kampala and
from there transported to Nairobi, Kenya, where they had been informed
that their father as well as the leader of NALU had been killed by
representatives of the Ugandan regime.
At the Nairobi airport the applicants had been provided with
Ugandan passports and flight tickets enabling them to go Stockholm via
Sofia. A man had given them an address and a telephone number of a man
in Stockholm and had told them to state to the Swedish authorities that
he was their brother. They had not been accompanied on their journey.
Before the Swedish authorities the applicants stated that they assumed
that they had been enrolled in NALU by their father and that, once he
had been killed, NALU had organised their journey to Sweden.
According to the Government, the first applicant stated, on
27 August 1993, that the applicants had left Uganda since they had been
unable to support themselves after their father's death. On
30 September 1993, however, the applicants stated that they had left
Uganda after having learnt that they were being wanted by the
authorities.
Initially, the applicants stayed at a refugee reception centre
in Stockholm. From November 1993 they stayed at a centre in Skellefteå
receiving refugee children without accompanying guardians.
The applicants' asylum request was rejected by the National
Immigration Board (Statens invandraverk) on 23 November 1993. The Board
considered, in particular, that their accounts of their background had
been vague. According to the Board, the applicants had also been able
to leave Uganda with valid passports despite the fact that they were
allegedly wanted there.
The applicants' appeal to the Aliens Appeals Board (Utlännings-
nämnden) was rejected on 17 June 1994. This Board also found that the
applicants had left Uganda with valid passports issued on
6 August 1993. They had given very vague and partly contradictory
information about their previous whereabouts in Uganda as well as of
the age of their father and the first applicant's brother. The Board
therefore found reason to question the credibility of the applicants'
accounts. Irrespective of whether these accounts were credible, the
Board found that the applicants had no reason to fear persecution in
the receiving country. The Board decided, however, that the enforcement
should be carried out on condition that the applicants were to be
received by relatives or staff of the Swedish Embassy in Uganda. The
Board found it certain that the applicants still had relatives in the
receiving country.
Subsequently the police authority of Skellefteå, in vain,
attempted to contact the applicants' mothers in Uganda. The Swedish
Embassy in Uganda also carried out investigations but without success.
On 7 November 1994 the local police in charge of planning the
enforcement of the expulsion order informed the National Immigration
Board that it was not possible to carry out the enforcement as it had
been ordered. A representative of the Board then orally instructed the
police that the applicants were to be met on their return to Uganda by
a representative of the national child welfare authority together with
a representative of the Swedish Embassy.
On 27 March 1995 the applicants lodged a request for a residence
permit on humanitarian grounds, invoking the unsuccessful attempts to
reach any of their relatives in Uganda. This request was rejected by
the Aliens Appeals Board on the same day. In its decision the Board
incorrectly stated that the applicants were to reach the age of
eighteen during 1995.
According to the applicants, an official of the Swedish Embassy
stated, on 4 April 1995, that it would have no or at the most very
limited possibilities of helping them on their return to Uganda.
On 6 April 1995 the police authority of Skellefteå ordered that
the applicants should be detained pending enforcement of the expulsion
order. On the same day they underwent a child psychiatric examination
and later went into hiding. According to a report of 7 April 1995, the
doctors Anna Lindström and Bo Viklund, of the child and youth
psychiatric clinic of Umeå, found that the applicants were suffering
from depression, were frequently considering suicidal acts and were
therefore in need of child psychiatric care.
On 7 April 1995 the applicants lodged a further request for a
residence permit on humanitarian grounds, invoking the above-mentioned
expert report. This request was refused on 13 April by the Aliens
Appeals Board.
On 20 April 1995 the applicants were admitted to the child and
youth psychiatric clinic of Umeå, regard being had to their mental
state as well as to their physical difficulties in absorbing liquids.
According to a report of 26 April 1995 by Dr. Bruno Hägglöf,
Senior Physician at the psychiatric clinic, the applicants had, at the
time of their admission, shown symptoms of depression and suicidal
tendencies. They had also expressed suicidal plans. They also suffered
from nutritional problems caused by a weak faculty of consuming fluids.
In view of their state of health Dr. Hägglöf stated having reported
their situation to the social authorities.
On 28 April 1995 the police authority contacted the psychiatric
clinic with a view to preparing the enforcement of the expulsion order
concerning the applicants. Dr. Hägglöf, however, considered that the
applicants were still in need of psychiatric treatment and therefore
questioned the planned enforcement. The police did not pursue their
enforcement attempt.
On 1 May 1995 the applicants again requested a residence permit
on humanitarian grounds, invoking their state of health. This request
was refused on 2 May 1995.
Following the indication given by the Acting President of the
Commission on 3 May 1995 (see "Proceedings before the Commission"), the
Aliens Appeals Board, on 5 May 1995, stayed the enforcement of the
expulsion order concerning the applicants.
On 9 May 1995 the Aliens Appeals Board revoked the order of
6 April 1995 that the applicants should be detained pending enforcement
of the expulsion order.
According to the applicants, they have had no contacts with any
relatives in Uganda since November 1993. This statement can allegedly
be verified by staff of the refugee reception centre at Skellefteå.
Relevant domestic law
According to the 1989 Aliens Act (utlänningslag 1989:529), a
residence permit may be granted to an alien for humanitarian reasons
(chapter 2, section 4, subsection 1 (2)). A so-called new request for
a residence permit may only be granted if the request, lodged by an
alien who is to be refused entry or expelled by a decision which has
acquired legal force, is based on new circumstances and provided the
applicant is either entitled to asylum or there are weighty
humanitarian reasons for allowing him or her to stay in Sweden
(chapter 2, section 5, subsection 3). As from 1 July 1994 a request
pursuant to chapter 2, section 5, shall be lodged with the Aliens
Appeals Board.
When considering whether to refuse an alien entry or to issue an
expulsion order, the authorities must examine, pursuant to chapter 8,
sections 1-4, of the Aliens Act, whether the alien can be returned to a
particular country or whether there are other special obstacles
to the enforcement of such a decision. Any necessary instructions
regarding the enforcement order shall be given by the Government, the
Aliens Appeals Board or the National Immigration Board in their
decisions (chapter 4, section 12).
If the enforcement meets no obstacles under chapter 8, an alien
is to be expelled or returned to the country of origin or, if possible,
to the country from which he or she came to Sweden. If the decision
cannot be enforced in one of these manners or if special reasons exist,
the alien may be sent to another country (chapter 8, section 5).
If the enforcing authority finds that the enforcement cannot be
carried out or that further information is needed, it shall notify the
National Immigration Board accordingly. In such a case, the Board may
decide on the question of enforcement or take such other measures as
are necessary (chapter 8, section 13).
If an expulsion order or a decision refusing entry contains no
instructions regarding its enforcement or if it is evident that the
instructions cannot be complied with, the enforcing authority shall
decide how to carry out the enforcement, provided it does not proceed
in accordance with chapter 8, section 13 of the Aliens Act (chapter 7,
section 2 of the 1989 Aliens Ordinance (utlänningsförordning
1989:547)).
When considering a new request for a residence permit lodged by
an alien who is to be expelled according to a decision which has
acquired legal force, the National Immigration Board (and in certain
cases also the Government) may stay the enforcement of that decision.
For particular reasons the Board may also otherwise stay enforcement
(chapter 8, section 10). Similarly, the Aliens Appeals Board may decide
to stay the enforcement of a previous expulsion order.
The National Immigration Board or the Aliens Appeals Board may
refer a matter to the Government if, for instance, its outcome is of
particular importance to the future application of the Aliens Act or
if other particular circumstances warrant the Government's
consideration of the case (chapter 7, section 11).
According to the 1991 Act on Compulsory Mental Care (lag
1991:1128 om psykiatrisk tvångsvård), such care shall be terminated at
the request of the competent police authority whenever the person
placed in care is ordered to be expelled. This presupposes, however,
that the Chief Physician is of the opinion that the alien's condition
allows enforcement to take place and consequently grants the request
(section 29; Government Bill no. 1190/91: 58, appendix 1, p. 270). No
appeal lies against the Chief Physician's decision upon a request made
by the enforcing authority (section 33 of the 1991 Act).
COMPLAINT
The applicants complain that an enforcement at present of the
expulsion order would subject them to a trauma constituting inhuman
treatment contrary to Article 3 of the Convention. They refer to their
background in Uganda as well as to the expert evidence adduced
concerning their current state of health. They allege, in particular,
that no one would care for them in Uganda after their return and assert
that there is no child welfare authority with such duties in Uganda.
PROCEEDINGS BEFORE THE COMMISSION
The application was introduced on 3 May 1995 and registered on
4 May 1995.
On 3 May 1995 the Acting President indicated to the respondent
Government that it would be desirable in the interest of the parties
and the proper conduct of the proceedings not to enforce the expulsion
order concerning the applicants until the Commission had examined the
application at the latest on 26 May 1995. The Acting President further
communicated the application to the Government, pursuant to Rules 34
para. 3 and 48 para. 2 (b) of the Rules of Procedure.
On 25 May 1995 the Commission prolonged the Acting President's
indication under Rule 36 until 7 July 1995.
The Government's written observations were submitted on
24 May 1995 and the applicants' observations in reply on 16 June 1995.
On 6 July 1995 the Commission prolonged its indication under Rule
36 until 15 September 1995.
On 7 July 1995 the Commission granted the applicants legal aid.
THE LAW
The applicants complain that an enforcement at present of the
expulsion order would subject them to a trauma constituting inhuman
treatment contrary to Article 3 (Art. 3) of the Convention. This
provision reads as follows:
"No one shall be subjected to torture or to inhuman or
degrading treatment or punishment."
The Government consider the application to be manifestly
ill-founded. First, the applicants' fear that they would be politically
persecuted on their return to Uganda is exaggerated. The Government
invoke the political changes in the receiving country and refer to
inconsistencies in the applicants' account of their background. For
instance, on 27 August 1993, the first applicant stated to the Swedish
authorities that the applicants had left Uganda since they had been
unable to support themselves after their father's death. Later,
however, the applicants stated that they had left their country after
having learnt that they were being wanted by the authorities. The
Government submit that, at any rate, the applicants' passports had been
issued already on 6 August 1993, that is before their father is said
to have been killed. This would seem to indicate that the applicants'
journey to Sweden had been planned in advance. The Government
furthermore submit that the applicants were able to leave their country
after having presented their passports at the border between Uganda and
Kenya. This does not support their contention that they are wanted by
the Ugandan authorities. Nor are they likely to encounter problems
caused by NALU, since their departure from Uganda is said to have been
arranged by that organisation. The Government therefore argue that
substantial grounds have not been shown for believing that the
applicants would, on account of their background in Uganda, face a real
risk of treatment contrary to Article 3 (Art. 3) if returned to that
country. The Government also consider that the applicants can be
returned to Uganda despite their current state of health. The
enforcement of the expulsion order would not involve such a trauma on
their part that this would amount to a violation of Article 3 (Art. 3).
Reference is made, in particular, to the medical report submitted by
Dr. Hägglöf on 26 April 1995. Moreover, the applicants stated in
September 1993 that their grandparents and possibly their mothers still
remained in Uganda. The Government point out that since the applicants
have no relatives in Sweden, their well-being in that country would
have to be ensured by the social authorities.
The Government finally submit that the local police authority
must, when preparing the enforcement, consider the applicants' state
of health and, if necessary, notify the National Immigration Board of
any impediment to the enforcement. The applicants' physical and mental
state at the time of any planned enforcement will therefore be
decisive.
The applicants submit that their application is not primarily
related to the political situation in Uganda but to the fact that they
are to be returned there despite their mental state and age and without
any indication that they would be cared for on their return. They
nevertheless emphasise that on arriving in Sweden they were only
fourteen and fifteen years old. It is therefore reasonable to suppose
that at that time they were frightened and insecure, this explaining
the discrepancies between certain of their accounts of their
background.
The applicants recall that their further request for a residence
permit on humanitarian grounds was based on a medical report that there
was a risk that they would commit suicide and that because of their
state of health they had been urgently admitted for psychiatric care.
Their request was nevertheless rejected without the Aliens Appeals
Board having consulted any of the physicians normally heard in
expulsion cases of this kind.
The applicants finally contend that since their arrival in Sweden
in August 1993 they have had no contact with Uganda and have not been
contacted by anyone in that country. There are strong indications that
their respective mothers have disappeared. Despite the efforts made by
the Swedish authorities in order to locate any of their relatives in
Uganda there is no evidence that any relatives remain there. Moreover,
the medical evidence adduced indicates that the applicants are in need
of long-term psychiatric treatment. It can be assumed that the Swedish
authorities have considerably greater possibilities for supporting and
helping them than the Ugandan authorities.
(a) The Commission has first examined whether the applicants' return
to Uganda would, if enforced, violate Article 3 (Art. 3) of the
Convention on account of their father's alleged political background
in that country and the surrounding circumstances.
The Commission recalls that Contracting States have the right to
control the entry, residence and expulsion of aliens. The right to
political asylum is not protected in either the Convention or its
Protocols (Eur. Court H.R., Vilvarajah and Others judgment of
30 October 1991, Series A no. 215, p. 34, para. 102). However,
expulsion by a Contracting State of an asylum seeker may give rise to
an issue under Article 3 (Art. 3) of the Convention, and hence engage
the responsibility of that State under the Convention, where
substantial grounds have been shown for believing that the person
concerned would face a real risk of being subjected to torture or to
inhuman or degrading treatment or punishment in the country to which
he is to be expelled (ibid., para. 103). A mere possibility of ill-
treatment is not in itself sufficient (ibid., p. 37, para. 111).
The Commission notes the Swedish authorities' doubts as to
whether the applicants would, on account of their father's background,
face a real risk of treatment contrary to Article 3 (Art. 3), if
returned to Uganda. It also notes that chapter 8 of the Aliens Act
imposes an absolute obligation on the enforcement authority in Sweden
to refrain from expelling an alien, should the human rights situation
in the receiving country constitute a firm reason to believe that he
or she would be in danger of being subjected to capital or corporal
punishment, or torture, in that country.
The Commission does not find it established that there are
substantial grounds for believing that the applicants would, on account
of their father's background in Uganda, be exposed to a "real risk" of
being subjected to treatment contrary to Article 3 (Art. 3) in that
country.
It follows that this aspect of the complaint must be rejected as
being manifestly ill-founded within the meaning of Article 27 para. 2
(Art. 27-2) of the Convention.
(b) The Commission has next examined the application in the light of
the applicants' allegation that no one would care for them on their
return to Uganda as well as in the light of their current state of
health. The question to be answered is whether the enforcement at
present of the expulsion order would in itself involve such a trauma
to the applicants that Article 3 (Art. 3) would be violated (cf. Eur.
Court H.R., Cruz Varas and others judgment of 20 March 1991, Series A
no. 201, p. 31, paras. 83-84).
The Commission recalls that ill-treatment must attain a minimum
level of severity if it is to fall within the scope of Article 3
(Art. 3). The assessment of this minimum is relative; it depends on all
the circumstances of the case, such as the nature and context of the
treatment, the manner and method of its execution, its duration, its
physical or mental effects and, in some instances, the sex, age and
state of health of the victim (the above-mentioned Cruz Varas and
others judgment, loc.cit.).
The Commission notes that the enforcement of the expulsion order
concerning the applicants was initially subject to written instructions
to the enforcing police authority which were issued by the Aliens
Appeals Board on 17 June 1994. On 7 November 1994 the police received
oral instructions from the National Immigration Board, according to
which the applicants are, on their return, to be met by a
representative of the Ugandan child welfare authority and a
representative of the Swedish Embassy. The Commission assumes that no
enforcement will take place without assurances that both of these
conditions are met.
The Commission therefore finds that in the circumstances of this
case it is not unreasonable to assume that the applicants' return to
Uganda would not amount to a violation of Article 3 (Art. 3). It
appears, moreover, that, should the applicants be placed in compulsory
care in Sweden, enforcement could under no circumstances take place
without permission of the Chief Physician responsible for their care.
Given that the enforcing police authority must request this physician
to terminate the care, he or she still retains a further opportunity
to assess, in a decisive manner, the applicants' state of health at the
time of the planned enforcement.
In these circumstances the Commission cannot find it to have been
shown that the applicants' possible return to Uganda would amount to
a violation of Article 3 (Art. 3) on account of the alleged absence of
carers in Uganda or the applicants' current state of health.
It follows that this aspect of the complaint must also be
rejected as being manifestly ill-founded within the meaning of
Article 27 para. 2 (Art. 27-2) of the Convention.
For these reasons, the Commission, unanimously,
DECLARES THE APPLICATION INADMISSIBLE.
Secretary to the Commission President of the Commission
(H.C. KRÜGER) (S. TRECHSEL)
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