Report of the Special Rapporteur on Torture and Other Cruel, Inhuman Or Degrading Treatment

A/HRC/28/68/Add.3

UnitedNations / A/HRC/28/68/Add.3
/ GeneralAssembly / Distr.:General
29December2014
English
Original:Spanish

HumanRightsCouncil

Twenty-eighthsession

Agendaitem3

Promotionandprotectionofallhumanrights,civil,
political,economic,socialandculturalrights,
includingtherighttodevelopment

ReportoftheSpecialRapporteurontortureandothercruel,inhumanordegradingtreatmentorpunishment,JuanE.Méndez

Addendum

MissiontoMexico[*]

Summary
TheSpecialRapporteurvisitedMexicofrom21Aprilto2May2014.
TortureisgeneralizedinMexico.Itoccursespeciallyfromthemomentwhenapersonisdetaineduntilheorsheisbroughtbeforeajudge,andisusedaspunishmentandasameansofinvestigation.TheSpecialRapporteuridentifiedanumberofreasonsfortheweaknessofpreventivesafeguardsandrecommendsmeasuresforaddressingthem.Healsoobservedseriousproblemsinconditionsofdetention,especiallyovercrowding.
TheSpecialRapporteurcallsontheGovernmenttoimplementhisrecommendationspromptlyandontheinternationalcommunitytoassistMexicoinitseffortstoeliminatetortureandill-treatment,endimpunityandguaranteevictimscomprehensiveredress.

Annex

[EnglishandSpanishonly]

ReportoftheSpecialRapporteurontortureandothercruel,inhumanordegradingtreatmentorpunishmentonhismissiontoMexico(21Aprilto2May2014)

Contents

ParagraphsPage

I.Introduction...... 1–53

II.Legalframework...... 6–193

A.Internationallevel...... 6–73

B.Regionallevel...... 84

C.Nationallevel...... 9–194

III.Assessmentofthesituation...... 20–756

A.Tortureandill-treatment...... 23–317

B.Investigations...... 32–418

C.Safeguards...... 42–6011

D.Conditionsofdetention...... 61–7115

E.Migrants...... 72–7317

F.Personswithdisabilities...... 74–7517

IV.Conclusionsandrecommendations...... 76–8818

A.Conclusions...... 76–7918

B.Recommendations...... 80–8819

I.Introduction

1.TheSpecialRapporteurontortureandothercruel,inhumanordegradingtreatmentorpunishmentvisitedMexicofrom21Aprilto2May2014toassessthesituationoftortureandill-treatmentandworkwiththeStatetopreventanderadicateit.

2.TheSpecialRapporteurheldmeetingswithseniorofficialsoftheSecretariatsofForeignAffairs,theInterior,NationalDefence,theNavyandHealth;theOfficeoftheAttorneyGeneraloftheRepublic(PGR);theSenateandtheChamberofDeputies;theSupremeCourtofJustice;theCounciloftheJudiciary;andtheNationalHumanRightsCommission(CNDH).Hemetwithofficialsoftheauthorities,attorneygeneral’sofficesandhumanrightscommissionsofthestatesvisited—theFederalDistrict,NuevoLeón,ChiapasandBajaCalifornia—andtookpartintheNationalConferenceofAttorneysGeneralinNuevoVallarta.Healsometwithcivilsocietyrepresentatives,victimsandtheirfamilymembersandmembersofinternationalorganizationsandthediplomaticcommunity.

3.TheSpecialRapporteurthankstheGovernmentforinvitinghimtovisitMexico,asignofitsopennesstoindependentandobjectivescrutiny,andthankstheauthoritiesforcooperatingfullywithhimduringhisvisit.Despitesituationswhereexcessivepreparationshadbeenmadeforhisvisit,ingeneraltheSpecialRapporteurhadunrestrictedaccesstodetentioncentres,inkeepingwithhisTermsofReference.[1]TheSpecialRapporteurregretsthathewasnotallowedaccesstotheStateInvestigationAgencyoftheNuevoLeónAttorneyGeneral’sOffice,especiallysincehereceivedanumberofcomplaintsoftorturehavingoccurredthere.

4.TheSpecialRapporteurvisitedprisons,pretrialdetention,arraigo(investigativeorpre-charge)detentioncentres,juveniledetentioncentres,apsychiatrichospital,asocialassistancecentreandamigrantholdingcentre.

5.TheSpecialRapporteurthankstheOfficeoftheHighCommissionerforHumanRightsinMexicoforitsvaluableassistanceandcivilsocietyandtheinternationalcommunityfortheirfundamentalcontributions,andexpresseshissolidaritywithvictimsandtheirrepresentatives.

II.Legalframework

A.Internationallevel

6.MexicohasratifiedtheInternationalCovenantonCivilandPoliticalRights,theConventionagainstTortureandOtherCruel,InhumanorDegradingTreatmentorPunishment,theConventionontheRightsoftheChild,theConventionontheRightsofPersonswithDisabilities,theConventionontheEliminationofAllFormsofDiscriminationagainstWomen,theConventionontheProtectionoftheRightsofAllMigrantWorkersandMembersofTheirFamilies,theInternationalConventionontheEliminationofAllFormsofRacialDiscriminationandtheInternationalConventionfortheProtectionofAllPersonsagainstEnforcedDisappearance.

7.MexicohasratifiedtheRomeStatuteoftheInternationalCriminalCourt,althougharticle21ofitsConstitutionestablishesthat“theFederalGovernmentmay,withtheapprovaloftheSenateineachcase,recognizethejurisdictionoftheInternationalCriminalCourt”.ThisconditionpreventsitfromcollaboratingfullywiththeCourtandcontravenestheprovisionsoftheStatutethatestablishtheCourt’sipsojurejurisdictionandprohibitanyreservationorinterpretativestatement.

B.Regionallevel

8.MexicohasratifiedtheprincipalhumanrightstreatiesoftheOrganizationofAmericanStates(OAS),includingtheAmericanConventiononHumanRights,theInter-AmericanConventiontoPreventandPunishTorture,theInter-AmericanConventiononForcedDisappearanceofPersonsandtheInter-AmericanConventiononthePrevention,PunishmentandEradicationofViolenceagainstWomen(ConventionofBelémdoPará).ItrecognizesthejurisdictionoftheInter-AmericanCourtofHumanRights.

C.Nationallevel

1.Constitution

9.TheConstitutionprohibits“flogging,beatingwithsticks,tortureofanykind”andother“unusualorextremepenalties”andpunishes“anyill-treatmentduringarrestandconfinement”.[2]Italsostatesthatincommunicadodetention,intimidationortortureisprohibitedandpunishablebycriminallaw.[3]

10.Asetofconstitutionalamendmentsenactedon10June2011affirmedthatnoderogationcanbemadefromtheprohibitionoftortureandtheremedyofamparo(protection),eveninstatesofemergency.Theamendmentsaccordedconstitutionalstatustothehumanrightsnormscontainedininternationaltreaties,includingtheobligationtoprevent,investigate,punishandredressviolations,andorderedthathumanrightsobligationsweretobeinterpretedprohomine.[4]TheyexpandedtheinvestigatorypowersoftheNationalHumanRightsCommissionandestablishedthattheprisonsystemmustbeorganizedonthebasisofrespectforhumanrightsandsocialreintegration.[5]TheSpecialRapporteurregretsthatimportantelementsoftheseamendmentsarestillawaitingimplementinglegislationandcallsontheGovernmenttoexpeditetheirfullimplementation.Anothersetofamendments,adoptedon6June2011,broadenedthescopeoftheremedyofamparotoincludetheprotectionofrightsrecognizedintheConstitutionandintreatiesratifiedbyMexico.[6]

11.In2008,anothersetofconstitutionalamendmentslaidthebasesforthetransitionfrominquisitorialtoadversarialcriminalproceedings,whichmustapplythroughoutthecountryby2016.TheamendmentsenshrinedintheConstitutionimportantpreventivesafeguards,includingtheobligationtorecordaperson’sdetentionimmediately,theinadmissibilityofevidenceobtainedinviolationoffundamentalrightsandtheadmissionsolelyofevidencepresentedincourthearings,withexceptionsforevidencesubmittedpriortothetrialandforcasesoforganizedcrime.Theyalsoaffirmedtheinadmissibilityofconfessionsmadeintheabsenceofdefencecounselandendorsedtheprinciplesofpresumptionofinnocenceandaccesstodefencecounselfromthemomentthatapersonisdetained.

12.However,the2008amendmentsalsoenshrinedintheConstitutionpracticesthatinterferewithfulfilmentoftheobligationtopreventanderadicatetorture.Forinstance,itaccordedconstitutionalstatustotheprocedureofarraigopenal(pre-chargedetentionincriminalcases)incasesoforganizedcrime.Underarticle16oftheConstitution,pre-chargedetentionmaybeimposedfor40days,renewableforafurther40days,withjudicialauthorization,“whenevernecessaryforthesuccessoftheinvestigation,theprotectionofpersonsorlegalrights”orwhenthereisreasontobelievethattheaccusedmightevadejustice.Thearticlealsopermitsdetentionwithoutajudicialwarrantincasesofflagrantedelicto,“quasi-flagrantedelicto”andurgentcasesinvolvingseriousoffences.Article19authorizespretrialdetentionwithoutformalchargesforcasesoforganizedcrimeandseriousoffences.

2.Legislation

13.Underfederaljurisdiction,tortureisdefinedintheFederalActonthePreventionandPunishmentofTorture,article3ofwhichestablishesthatapublicservantcommitsthecrimeoftorturewho,actinginthatcapacity,inflictsseverepainorsuffering,whetherphysicalormental,onapersonforsuchpurposesasobtainingfromhimorathirdpersoninformationoraconfession,punishinghimforanacthehascommittedorissuspectedofhavingcommittedorcoercinghimintoengagingornotengaginginagivenconduct.Thepenaltyis3to12years’imprisonment,plusfinesanddebarmentfrompublicoffice.Anindividualwho,attheexplicitorimplicitinstigationorwiththeimplicitorexplicitauthorizationofapublicservant,inflictsseverepainorsuffering,whetherphysicalormental,onadetaineeshallalsobepunishable,asshallthepublicservantwhoinstigatesorauthorizeshim.TheActrequirespublicservantstoreportanytorturethatcomestotheirknowledgeinthecourseoftheirduties.

14.Thefederaldefinitionoftorturedoesnotmeetthestandardsofarticle1oftheConventionagainstTortureandarticle2oftheInter-AmericanConventiontoPreventandPunishTorture.TheFederalActdoesnotrefertotorturecommittedforanyreasonbasedondiscriminationofanykindandrequiresthat,whenanindividualcommitsthecrime,thepersontorturedmustbeadetainee,therebyundulyrestrictingtheAct’sapplication.Whiletheinternationaldefinitiononlyrequiresproofofintenttocausesuffering,theActrequiresproofofintentwithrespecttothepurposeforwhichthetortureiscommitted.TheSpecialRapporteurdrawsattentiontothecurrentdiscussioninParliamentofabillthatwouldremovethesediscrepanciesbyusingthedefinitioncontainedintheInter-AmericanConvention.Thechoiceofthelatterdefinitionisinkeepingwitharticle1oftheConventionagainstTorture,sinceitoffersgreaterguarantees.

15.Allthestatesdefinethecrimeoftortureintheirlegislation,butinmostcasesthesedefinitionslikewisefailtomeetinternationalstandards.SomestatelawsaremodelledontheFederalAct,whileothershavetheirownshortcomingsorcontainappropriatedefinitionsbutimposeverylightpenalties,asinthecaseofthestateofChiapas.Withafewexceptions,suchastheFederalDistrict,whichusesadefinitionoftorturethatcomesfairlyclosetotheinternationaldefinition,thedefinitionsusedinstatelawsalsoneedtobeamendedtoreflectthedefinition,guaranteesandpenaltiesdemandedininternationalnorms.

16.TheFederalActrecognizesimportantpreventivesafeguards,suchastheinadmissibilityofevidenceorstatementsobtainedundertortureandconfessionsmadeintheabsenceoflegalcounselandtheobligationonexaminingphysicianstoreportanytortureobserved.TheActorganizingtheOfficeoftheAttorneyGeneraloftheRepublicandtheFederalActonthePublicDefender’sOfficerequirethestaffofthoseinstitutionstopreventandreportanytorturethattheyobserveinthecourseoftheirduties.

17.TheSpecialRapporteurdrawsattentiontotheadoptioninJanuary2013oftheGeneralVictimsAct,whichguaranteestherighttoredressofvictimsofhumanrightsviolations,includingtortureandill-treatment.TheActcreatedtheNationalVictimsAssistanceSystem,headedbythePresidentoftheRepublicandoperatedbytheVictimsAssistanceExecutiveCommission,whichhasaCommitteeonTorturethatassistsvictimsandhelpsmakepolicy.TheActcreatedaNationalVictimsRegister(currentlybeingsetup)andaFundforAssistanceandComprehensiveRedressandguaranteesadviceandcareforvictimsatfederalandlocallevel.

18.TheNationalCodeofCriminalProcedurewaspublishedinMarch2014.TheCoderegulatesadversarialproceedingsandmustbeadoptedandimplementedbystatelegislaturesby2016atthelatest.Itstrengthensconstitutionalguaranteesandestablishessafeguardsforpreventingtortureandill-treatment,including:accesstoandconfidentialcommunicationwithalawyerfromthemomentwhenapersonisdetained;therightofdetaineestonotifyfamilymembers,toundergoamedicalexamination,tobeinformedoftheirrightsandtheactsofwhichtheyareaccusedandnottobeparadedbeforethemedia;creationofthepositionofsupervisoryjudgetoverifythatdetentionislawful;andsanacrítica(soundjudicialdiscretion)intheweighingofevidence.TheSpecialRapporteurregretsthattheCodecontinuestoauthorizethePublicProsecutionServicetodetainapersonwithoutjudicialauthorizationinurgentcasesinvolvingseriousoffences,broadlydefinedasthosegivingrisetopretrialdetentionwithoutformalchargesoranaveragepenaltyofmorethan5years’imprisonment.

19.InJune2014,theCodeofMilitaryJusticewasamendedtoexcludefrommilitaryjurisdictioncasesofcivilianvictimsofhumanrightsviolations,therebyrestoringthemilitarycourts’practiceofdecliningjurisdictionaccordingtocriteriaestablishedbytheSupremeCourtofJustice.TheSpecialRapporteurregretsthattheamendmentcontinuestoassigntomilitaryjurisdictioncasesofhumanrightsviolationsinwhichboththeperpetratorandthevictimaremilitarypersonnel.ThisdoesnotcomplyfullywithinternationalstandardsorwiththecaselawoftheInter-AmericanCourtofHumanRights.

III.Assessmentofthesituation

20.Mexicoisfacingacomplexpublicsecuritysituation.Organizedcrimeposesachallengetotheauthoritiesandthepopulation.Since2006,inthecontextoftheso-called“warondrugtrafficking”,measureshavebeentakentoregulatedetention,investigationandthefightagainstorganizedcrime,includingthedeploymentofarmedforcestoperformlawenforcementfunctions,withthenumberofmilitarypersonnelthusdeployedreaching50,000in2012.TheNationalHumanRightsCommissionrecordedanincreaseinthenumberofcomplaintsoftortureandill-treatmentsince2007andreportedapeakof2,020complaintsin2011and2,113in2012,comparedwithanannualaverageof320inthesixyearspriorto2007.BetweenDecember2012andJuly2014,theCommissionreceived1,148complaintsofviolationsattributabletothearmedforcesalone.

21.TheGovernmentandtheNationalHumanRightsCommissionreportedthatthenumberofcomplaintsofhumanrightsviolationshasdeclinedrecently.Measureshavebeentakenthatcontributetocrimepreventionandthedevelopmentofsecuritypolicieswithahumanrightsperspective.Theseincludeamilitarypullbackinsomeareas,restrictionsonarraigodetention,constitutionalamendments,legalandjurisdictionaldevelopmentsandhumanrightstraining.

22.Thestrategyofmilitarizedlawenforcementisongoing,however,ascanbeseenfromthefactthatover32,000militarypersonnelarestillperformingtaskscustomarilyperformedbycivilianforces.Moreover,soldierswhohaveretiredorareonleavehavejoinedciviliansecurityforcesandanarmy-trainedpoliceforcehasbeencreated.Thisthreatenstheprinciplesthatmustgovernlawenforcementandtheguaranteesofdetainees.

A.Tortureandill-treatment

23.Tortureandill-treatmentaregeneralizedinMexico.TheSpecialRapporteurreceivedmanycrediblecomplaintsfromvictims,familymembersandtheirrepresentativesandpersonsdeprivedoftheirlibertyandwasinformedofanumberofalreadydocumentedcasesthatpointtothefrequentuseoftortureandill-treatmentinvariouspartsofthecountrybymunicipal,stateandfederalpolice,stateandfederalministerialpoliceandthearmedforces.Mostvictimsaredetainedforallegedlinkswithorganizedcrime.Thissituationisexacerbatedbythestateofexceptionsuspendingtheconstitutionalandlegalrightsofdetaineeswithallegedlinkstoorganizedcrime,whichincludesarraigodetention,pretrialdetentionwithoutformalchargesandtheabilityofthePublicProsecutionServicetoextendtheperiodduringwhichapersonisdetainedorheldbeforebeingbroughtbeforeajudge.

24.Itisdifficulttoknowtherealnumberofcasesoftorture.Atpresent,thereisnonationalregisterofcasesandeachstatehasitsowndata.Moreover,manycasesarenotreportedoutoffearofreprisalsordistrustoftheauthoritiesandthereisatendencytoclassifyactsoftortureandill-treatmentaslessseriousoffences.Thenumberofreportsandcomplaintsisalsoveryhigh.TheNationalHumanRightsCommissionreportedreceiving11,608complaintsoftortureandill-treatmentbetween2006andApril2014.TheFederalDistrictHumanRightsCommissionreceived386complaintsoftorturebetweenFebruary2011andFebruary2014.Civilsocietyorganizationsreportedmorethan500documentedcasesbetween2006and2014.Althoughtheremaybesomeduplication,thesenumbersareworrying.

25.Tortureisusedmainlyfromthemomentwhenapersonisdetaineduntilheisbroughtbeforethejudicialauthority,itspurposebeingtopunishandtoextractconfessionsorincriminatinginformation.In2012,accordingtoasurveybytheCentreforResearchandTeachinginEconomics(CIDE),57.2percentofdetaineesinfederalcentressaidthattheyhadbeenbeatenduringtheirdetentionand34.6percentsaidthattheyhadbeenforcedtosignoralteraconfession.Consistently,analarmingnumberofdetaineesinterviewedclaimedtohavebeentorturedafterbeingdetained.AttheFederalInvestigationCentre,wherearraigodetaineesareheld,almosteveryoneinterviewedclaimedtohavebeensubjectedtotortureandill-treatmentbeforeenteringtheCentre.

26.TheSpecialRapporteurobserveddisturbingsimilaritiesamongtestimonies.Generallyspeaking,peoplereporthavingbeendetainedbyindividualsdressedascivilians,sometimeshooded,whodriveunmarkedcars,donothaveanarrestwarrantanddonotgivethereasonsforthearrest.Whenpeoplearearrestedathome,suchindividualsgenerallyenterthehomewithoutawarrantandpropertyisdamagedandstolen.Duringtheirarrest,peoplearehit,insultedandthreatened.Theyareblindfoldedanddriventounknownlocations,includingmilitarybases,wherethetorturecontinues,consistingofacombinationof:punches,kicksandbeatingswithsticks;electricshocksthroughtheapplicationofelectricaldevicessuchascattleprodstotheirbodies,usuallytheirgenitals;asphyxiationwithplasticbags;waterboarding;forcednudity;suspensionbytheirlimbs;threatsandinsults.Occasionally,daysgobywithoutanyonebeinginformedofthedetainee’swhereaboutsorwithoutthedetaineebeingbroughtbeforetheministerialpoliceorjudicialauthority.Victimshaveoftenbeenparadedbeforethemediaascriminalswithouthavingbeenconvicted;thisinitselfconstitutesdegradingtreatment.

27.TheSpecialRapporteurwastoldofcaseswherevictimshaddiedasaresultofbeingtorturedandcaseswheretortureoccursinconjunctionwithextrajudicialexecutionsandenforceddisappearances.Hereceiveddisturbingtestimoniesabouttheexcessivedelays,errors,lackofinformation,stigmatizationandharassmentexperiencedbyrelativesofdisappearedpersonsinthesearchforandtheidentificationofremains,whichmayalsoconstituteill-treatment.Thisappliestocrimescommittedbothbypublicemployeesandbyprivateindividuals.

28.TheSpecialRapporteurisconcernedabouttheuseofsexualviolenceasaformoftorture,mainlyagainstwomendetainees.Sexualtortureincludesforcednudity,insultsandverbalhumiliation,gropingofbreastsandgenitals,insertionofobjectsinthegenitalsandrepeatedrapebymultipleindividuals.Fewofthesecaseshavebeeninvestigatedorpunished,orelsetheyhavebeenclassifiedaslessseriousconducts,andtheypresentparticularchallengesforvictims,whoareoftenrevictimizedwhentheyfilecomplaintsorundergomedicalexaminations.

29.Generallyspeaking,victimsoftortureandill-treatmentarepeoplewhoarepoororfrommarginalizedsocialsectors,asituationthatexacerbatesproblemsofstigmatizationandinadequatesafeguards.TheSpecialRapporteurdrawsattentiontothemanycasesinwhichpeoplewithnoapparentlinktothecriminalconductunderinvestigationreporthavingbeendetained,forcedtosignstatementsundertortureand,insomecases,sentencedonthebasisofthesestatements.

30.Complaintsofabusivelawenforcementduringdemonstrationsoragainstjournalistsorhumanrightsdefendershaveincreased,buthavenotbeeninvestigatedeffectively.Thecreationin2012,withcivilsocietyparticipation,oftheProtectionMechanismforHumanRightsDefendersandJournalistswasapositivestep,buttheMechanismneedstobestrengthenedtoensureitssurvivalandeffectiveness.Thepoliceforcesandthearmedforceshaveissuedprotocolsregulatingtheconductoflawenforcementactivities,butthereisnofederallegislationthatregulateslawenforcementinaccordancewithinternationalstandards.TheSpecialRapporteurstressestheneedtoaddressthisissueasamatterofpriority,especiallygiventhevariousdemonstrationsthathavetakenplacerecently.

31.Therightofvictimsoftortureandill-treatmenttocomprehensiveredressisillusory,sincetherearehardlyanycasesinwhichvictimshavebeencompensated,receivedmedicalandpsychologicalcareorbenefitedfromrehabilitationinaccordancewithinternationalstandards.Theredressrecommendedbythehumanrightscommissionsisinsufficientandisnotgenerallyforthcoming.Bylaw,thepersoncriminallyresponsibleforthecrimemustpayfinancialcompensation,butintheprevailingclimateofimpunitythisalmostneverhappens.TheGeneralVictimsActoffersanexcellentopportunityforprogressinthisareaandtheSpecialRapporteurcallsforitsimplementationtobestrengthenednationwide.

B.Investigations

32.Thefactthatthelargenumberofcomplaintsandtestimoniesreceivedisnotmatchedbyasimilarnumberofinvestigationsoftortureandill-treatment,stilllessconvictions,isevidenceofadisturbinglevelofimpunity.TheGovernmentreportedonlyfiveconvictionsfortorturebetween2005and2013,ofwhichtwoarefinalandimposeprisontermsof3and37yearsrespectively.ThenumberofrecommendationsissuedbytheNationalHumanRightsCommissionandstatehumanrightscommissionsconcerningcasesoftortureandill-treatmentisalsosubstantiallylowerthanthenumberofcomplaintstheyreceived.Inresponseto11,254complaintsoftortureandill-treatmentreceivedbetween2005and2013,theNationalHumanRightsCommissionhasissued223recommendations,notoneofwhichhasresultedinacriminalconviction.Thisshowsthatimpunityextendstocasesoftortureverifiedbythehumanrightscommissions.Withsomerareexceptions,therehavealsobeennoadministrativeinvestigationsandnoonehasbeendismissed,andmanyoftheallegedperpetratorsremaininoffice.

33.Asimilarlevelofimpunityexistsatstatelevel.IntheFederalDistrict,itwasreportedthat388preliminaryinvestigationsintoallegationsoftorturehavebeenlaunchedsince2008,withcriminalproceedingsbroughtinonly2casesand121casesstillbeingprocessed.Therehavebeenonlythreeconvictionssince2005andthepenaltiesimposedonthe12personsfoundguiltyinthesecasesarenotcommensuratewiththeseriousnessofthecrime.TheFederalDistrictHumanRightsCommission,however,reported386complaintsoftortureandissued12recommendationsbetween2011andFebruary2014.InNuevoLeón,therehasbeennoconvictionfortorture,yettheStateHumanRightsCommissionreceived293complaintsandissued67recommendationsoncasesoftortureandill-treatmentbetween2012andearly2014.InChiapas,ofthefourverdictsreachedincasesoftorturebetween2007and2013,allwereacquittals.

34.Therearestructuralflawsatbothfederalandstatelevelthataccentuatethisimpunity.Publicprosecutionservicesarereluctanttoinvestigatecomplaints.Althoughtheseservicesareusuallyvictims’firstpointofcontactwiththejusticesystem,theytendtodismissvictims’complaintsasaploytohavechargesagainstthedetaineedropped.Victimsoftenhavetoreporttorturetothesamebodythattheyareaccusingofcommittingorpermittingit.Thereisalsoatendencyonthepartofpublicprosecutionservices,judgesandhumanrightscommissionstoclassifyconductsconstitutingtortureaslessseriousoffences,suchasabuseofauthority,causingbodilyharmorinjuriesormisconductinpublicoffice.

35.TheSpecialRapporteurwasinformedofcaseswherejudgeshadfailedtoorderthepublicprosecutionservicetolaunchaninvestigationafterreceivingcomplaintsfromthevictim.Whereinvestigationswereordered,theywereslowandwerenotfollowedupproperly,becomingamereformality.Onapositivenote,theSupremeCourthasissuedrulingsrecentlythatemphasizejudges’obligationautomaticallytoorderaninvestigationincasesofpossibletorture[7]andaprotocolhasbeenadopteddirectingtheconductofjusticeofficialsinsuchcases.[8]TheSpecialRapporteurencouragesallthecountry’sjudicialbodiestofollowthispractice.

IstanbulProtocol

36.TheIstanbulProtocolisafundamentaltoolforguidinginvestigationsoftortureandill-treatment.ItsimplementationinMexicoisbasedmainlyonaprocedureestablishedinAgreementNo.A/057/2003oftheAttorneyGeneral’sOffice,whichregulateshowtheexpertservicesattachedtotheAttorneyGeneral’sOfficearetoproceedindrawingupthemedicalandpsychologicalopinionforcasesofpossibletortureorill-treatment.Bytheendof2013,theAttorneyGeneral’sOfficehad162doctorsand49psychologiststrainedtoimplementtheAgreement.

37.Ingeneral,publicprosecutionservicesarealsoresponsibleforimplementingtheProtocolatstatelevel.Onepositivedevelopmentisthat,atthe2013NationalConferenceofAttorneysGeneral,alltheattorneygeneral’sofficespledgedtoimplementtheProtocolandatleast16havedrawnuptheirproceduresinaccordancewithAgreementNo.A/057/2003.Manystateattorneygeneral’sofficesdonothavetrainedmedicalstaff,however,andoftenasktheAttorneyGeneral’sOfficeforassistance,therebyaddingtothedelayinconductingmedicalexaminations.

38.ThehumanrightscommissionsarealsocompetenttoconductexaminationsinaccordancewiththeProtocol.Theallocationofresourcesamongthedifferentcommissionsisuneven,however.WhiletheFederalDistrictHumanRightsCommissionhasprofessionalmedicalandpsychologicalsupport,mostlocalhumanrightscommissions,includingthoseofBajaCaliforniaandChiapas,donothavesufficientexpertsoftheirownandhavetorequestandwaitforassistancefromtheNationalHumanRightsCommission’s50experts.

39.TheSpecialRapporteurobservedmajorshortcomingsintheapplicationoftheProtocol,withregardtoboththeconductofmedicalexaminationsandtheinterpretationanduseoftheirfindings.AgreementNo.A/057/2003generallyrespectstheprinciplesthat,accordingtotheProtocol,mustguidethephysicalandpsychologicalexaminationofvictimsoftorture.However,theProtocolalsocontainsfundamentalstandardsonhowtheevidentiaryvalueofmedicalexaminationsistobeweighedandontheneedforaprompt,impartial,independentandexhaustiveinvestigationthatarenotincludedintheAgreement.Despitetheseshortcomings,thereisatendencytoequateconductofthemedicalexaminationregulatedbytheAgreementwithcompliancewiththeProtocol,therebylegitimizinginadequateinvestigations.TheSpecialRapporteurobservedanumberofcaseswherethenegativefindingsofthemedicalexaminationwereinterpretedasevidenceoftheabsenceoftorture,bothbyprosecutorstojustifynotlaunchinginvestigationsandbyjudgestojustifynotexcludingevidenceandnotorderinginvestigations.ThiscontradictsthespiritoftheProtocol,whichestablishesthatevidenceoftorturevariesaccordingtothepersonalexperienceofeachvictimandthepassageoftimeandcallsforcontextualelementstobetakenintoaccountintheinvestigation.TheSpecialRapporteurhopesthattheseconsiderationswillbetakenintoaccountwhentheAgreementisrevisedasannouncedbytheGovernment.

40.TheapplicationoftheProtocolisusuallydelayed,incompleteandcarriedoutbyuntrainedstaff.Becauseofthedelay,thetorturevictim’sallegationsusuallycontrastwithmedicalreportsproducedatthebeginningofdetention,andtheabsenceofanyreferenceinthosereportstophysicalevidenceconsistentwiththeallegedtortureisconsideredproofofthenon-existenceoftortureforthepurposesoftheProtocol.However,theseinitialmedicalreports,wheretheyexist,areofteninadequateorareproducedbystaffofthesameforcethatisaccusedofcommittingoracquiescingintorture.Moreover,evenifthelawdoesnotattachgreaterevidentiaryvaluetoofficialexpertopinionsthantoprivateones,thenumberofindependentexpertstrainedintheProtocol’sapplicationissmallandtheyfaceobstaclesingainingaccesstovictimsdeprivedoftheirliberty.Privateexpertopinions,includingthoseofhumanrightscommissions,areoftendisregardedordiscreditedbyjudgesor,whentheydivergefromtheofficialopinion,arecontrastedwitha“thirddissentingopinion”,usuallyalsoofficial.ThenewsystemofadversarialcriminalproceedingsandtheSupremeCourt’sdecisionintheIsraelArzatecase,compellingthecourtstoconsidertheexpertopinionsofthehumanrightscommissions,[9]areencouragingdevelopmentsforreversingthispractice.

41.EventhoughAgreementNo.A/057/2003isusedinalimitednumberofinvestigations,theAttorneyGeneral’sOfficeconducted232examinationsbetween2007and2014andreportedthatafurther715areinprocess.Only11completedexaminations(5percent)foundpositiveevidenceoftorture.Unfortunately,theshortcomingsobservedwhenitcomestoconducting,interpretingandusingtheexaminationregulatedbytheAgreementunderminethevalidityofthisinformation.TheSpecialRapporteuracknowledgestheState’scommitmenttousetheProtocolinallinvestigations,forwhichpurposeindependentexpertshavebeentrainedandassessed.HehopesthattheseeffortswillresultintheProtocolbeingusedasaguidefortheproperinvestigationoftortureandpreventitfrombeingusedasasubstituteforinvestigation,inwaysthatmayintimidatevictimsorasameansofdeterminingwhethertheirallegationsaretrue.

C.Safeguards

1.Legaldefence

42.TheSpecialRapporteurobservedvariouscasesinwhichvictimsoftortureandill-treatmentdidnothaveprompt,confidentialaccesstoadequatelegalcounselfromthemomentoftheirdetention,inviolationofinternationalstandardsandnationallaw.DetaineesusuallydonotseeormeettheirlawyerorpublicdefenderuntiltheymaketheirfirststatementbeforethePublicProsecutionService,andsometimesnotuntiltheyarebroughtbeforethejudge.TheSpecialRapporteurnotesthat,inthecaseoftheFederalInvestigationCentre,detaineeshaveaccesstoalawyeronlyiftheAttorneyGeneral’sOfficehasgivenitsauthorization.Thisplacestheminavulnerablesituation,especiallysincethesameauthorityisresponsibleforconductingtheinvestigation,enforcingdetentionandauthorizingthevisit.

43.Therepresentationprovidedbypublicdefendersfordefendantswhoarevictimsoftortureandill-treatmentisofteninadequate.TheSpecialRapporteurwastoldofcaseswheredetaineesgavestatementsincriminatingthemselvesinthepresenceofpoliceorministerialpoliceofficersfromtheforcesresponsibleforcommittingoracquiescingintortureandthesestatementsweresignedbypublicdefenderswhowerepresentinthechamberbuthadnotidentifiedthemselvestothedefendant.Hewasalsotoldofcaseswheredefencelawyershaddissuadeddefendantsfromcomplainingoftortureinordertospeedupthetrial.

44.OnepositiveSupremeCourtdecisionrulesthatinadequatedefencemustbetakenintoaccountforexcludingevidencefromatrial.[10]TheSpecialRapporteururgesthatthispracticebestrengthened,aswellasanymeasureneededtoguaranteedetaineesaproperdefencefromthemomenttheyaredetained.

2.Medicalexaminations

45.TheFederalActonthePreventionandPunishmentofTorturestipulatesthatamedicalexaminationmustbecarriedoutatthebeginningofdetentionifthedetaineesorequestsandthatanysignsoftortureorill-treatmentobservedintheexaminationmustberecordedandreported.Usually,thisexaminationisnotcarriedoutimmediatelyandisincomplete,inthatitrecordsthedetainee’sgeneralphysicalandmentalstatewithoutreferringtoindicationsorallegationsoftorture.Examinationsareusuallycarriedoutinthepresenceofthepoliceorministerialpoliceofficersinchargeofdetention,makingitimpossibleforthedetaineetogivethedoctoraconfidentialaccountofwhathappenedandforthedoctortocheckinjuriesproperlyandrecordthem.Doctorstendtobemembersofstaffoftheinstitutionswheredetaineesareheld,asituationthatunderminestheirindependenceandimpartiality.

46.Medicalexaminationsarealsoimportantbecausetheyareusefulfordetectingtheneedforimmediatemedicalcare,whichtheStatehasanobligationtoprovide.TheSpecialRapporteurmetapersondetainedonpremisesoftheBajaCaliforniaattorneygeneral’sofficewhoselegwasbadlyinfectedandwhohadbeenheldforover24hourswithoutbeingexaminedbyadoctorandwithoutaccesstoalawyer,waterorfood.

3.Detentionwithoutawarrant

47.TheSpecialRapporteurobservedatendencytodetaininordertoinvestigate,ratherthaninvestigateinordertodetain.Thistendencyisbeingreinforcedbytheconstitutionalrecognitionofarraigo,bydetentionwithoutawarrantincasesofquasi-flagrantedelictoandurgentcasesinvolvingseriousoffencesandbytheexistenceinlawof“equipollentflagrancy”(flagranciaequiparada),aconceptsimilartoquasi-flagrantedelictothatremainsinforceinsomestatespendingtheentryintoforceoftheadversarialsystem.TheSpecialRapporteurobservedthewidespreaduseofarrestinurgentcasesandalaxandimproperuseoftheconceptofinflagrantedelicto.In2012,6,824federalarrestwarrantswereissued,but72,994arrestsweremadewithoutawarrant.In2013,thefigureswere5,539and42,080respectively.TheSpecialRapporteurnotedminimalministerialpoliceorjudicialoversightofthelegalityofarrestsandbelievesthatsuchpracticesgiverisetoarbitrarydetentionandincreasetheincidenceoftortureandill-treatment.

48.TheSpecialRapporteurobservedcaseswhereover24hourshadelapsedbetweenaperson’sarrestandhishandovertothePublicProsecutionService,inviolationoftheconstitutionalrequirementtodosopromptly.Ifoneaddstothisthe48hoursgiventothePublicProsecutionServicetopresentchargesandbringthedetaineebeforeajudge,whichcanbeextendedupto96hoursincasesoforganizedcrime,thepersonmayspendseveraldaysunderinvestigationwithoutappearingbeforeajudgeorseeingalawyer.

4.Arraigo(pre-chargedetention)

49.Arraigoinvolvesdetainingaperson,withawarrantandattherequestoftheAttorneyGeneral’sOffice,for40days,renewableforafurther40days.Theaimistoinvestigatetheperson’sallegedparticipationinanoffencerelatedtoorganizedcrimeandtodecidewhethertobringcriminalcharges.TheSpecialRapporteurconsidersthatarraigoviolatestherighttopersonalliberty,dueprocessandtheprincipleofpresumptionofinnocenceandexposesthedetaineetopossibletorture.Accordingly,hestronglyurgestheGovernmenttoabolishitimmediately.[11]

50.TheSpecialRapporteurdidnotreceiveanycomplaintsoftorturecommittedintheFederalInvestigationCentre,althoughmostofthearraigodetaineesinterviewedclaimedtohavebeenvictimsoftorturebeforearrivingattheCentre.However,theNationalHumanRightsCommissionrecordedanincreaseincomplaintsofhumanrightsviolationsinarraigosituationsfrom45in2008to148in2011.

51.TheGovernmentreportedthatof534personsplacedinpre-chargedetentionin2013,432werecharged.However,theSpecialRapporteurregretsthathereceivednoinformationonthestandardofevidenceforrequestinganarraigodetentionoronthenumberofthosechargedwhoreceivedafinalconviction.Accordingtodatareceived,ofthemorethan8,000personssubjectedtoarraigodetentionsince2008,only3.2percenthavebeenconvicted.

52.Theuseofarraigohasdeclinedrecently.While812arraigomeasureswererequestedand586grantedin2012,thenumberswere272and177respectivelyin2013,and112and48inthemonthsuptoApril2014.RecentSupremeCourtdecisionshaverestrictedtheuseofarraigotofederaljurisdictionincasesoforganizedcrime.[12]StatessuchasChiapas,Oaxaca,CoahuilaandYucatánhaverepealedthemeasureandothershavestoppedusingit.TheCongressiscurrentlyconsideringaconstitutionalbillthatwouldreducethearraigodetentionperiodto20days,renewableforafurther15days.

53.Eventhoughtheuseofarraigoisdecliningwiththeintroductionofadversarialcriminalproceedings,themeasureiscontrarytointernationallawandencouragestheprevailingphilosophyofdetaininginordertoinvestigate.ThiscanbeseenintheFederalDistrict,whichcontinuestousearraigo,albeitwithadifferentname(“detentionwithjudicialoversight”)andforashorterperiodoftime.TheSpecialRapporteurisconcernedthattheNationalCodeofCriminalProcedureauthorizeshousearrest(resguardodomicilario),aswellasuptosixmonthsofsupplementaryinvestigationafteraperson’sdetentionpendingtrialandbeforechargesarebrought,toenablethePublicProsecutionServicetoinvestigate.[13]Duringthistime,thepersonmaybeheldinpretrialdetention,whichinthecaseofseriousoffencesismandatory.TheSpecialRapporteurrecommendsthatthenecessaryproceduralguaranteesbestrengthenedtoensurepresumptionofinnocenceandavoidreplicatingarraigowithothersimilarmeasures.

5.Recordofdetention

54.Theobligationtodrawupadetailed,immediaterecordofdetentionisnotalwaysfulfilled.Thissituation,coupledwiththeabsenceofaunified,publiclyaccessibleregisterofdetentions,makesitdifficulttofindoutwhereandhowapersonwasdetainedandhindersjudicialoversight.Since2008,therehasbeenprovisionintheConstitutionforan“immediaterecordofdetention”,butitsdesignandimplementationarenotnecessarilyaimedatevaluatingtheconductofthosewhodetainedthepersonanditdoesnotthereforeincludedataonmedicalopinionsorincidentsduringdetention.SomepositiveelementsaretherequirementthatthePublicProsecutionServicekeeparecordofdetentions,inaccordancewiththeNationalCodeofCriminalProcedureandAgreementNo.A/126/10oftheAttorneyGeneral’sOffice.TheSpecialRapporteururgesthatthesemeasuresbestrengthenedtoensureanationwide,publiclyaccessibleregisterofdetentionsindicatingthenumberandidentityofdetainees,theirwhereabouts,conditionsofdetention,thechainofcustodyandthetreatmentreceived.

6.Evidenceobtainedundertorture

55.TheConstitutionprohibitstheconsiderationofevidenceobtainedundertortureorinviolationoffundamentalrightsandattachessafeguardstotheaccused’sstatementforittobeadmissibleincourt.Occasionally,however,judgesadmitevidenceobtainedasaresultoftortureorill-treatmentorpostponeadecisiononitsadmissibilitytothefinalsentencingstage,whiletheaccusedgenerallyremainsinpretrialdetention.Peopleareoftenfoundguiltysolelyorprimarilyonthebasisofconfessionsobtainedasaresultoftortureorill-treatment.Thispracticebreachesthestandardofexclusionofevidencecontainedinarticle15oftheConventionagainstTortureandarticle8oftheFederalActonthePreventionandPunishmentofTortureandencouragestheuseoftortureandill-treatmentduringtheinvestigation.

56.Judgesofteninvokethemisappliedtheoryof“proceduralimmediacy”toadmitsuchevidence,givinggreaterweighttothedetainee’sinitialstatementsoversubsequentones,eveniftheinitialstatementwasobtainedwithoutthenecessaryguarantees.Thistheorywouldnotapplyinadversarialproceedings.TheStatemustalsoensurethatanyconfessionismadeinthepresenceofalawyerandwithjudicialoversightandisweighedwiththerestoftheevidence.Judgeshavealsodismissedallegationsoftortureorruledconfessionsadmissibleonthegroundsthatthevictimhasnotprovedtheexistenceoftortureortheresponsibilityofapublicemployee.TheSpecialRapporteurrecallsthatinternationallawstipulatesthat,onceacredibleallegationoftortureorill-treatmenthasbeenmade,theStatemustprovethatthetortureorill-treatmentdidnotoccurandjudgesmustordertheimmediateexclusionoftheevidenceandtheconductoftherelevantinvestigations.

57.Recently,therehavebeenpositivejurisprudentialandpracticaldevelopments.TheSupremeCourtruledthatevidenceobtainedonthebasisofunlawfuldetentionandinviolationoffundamentalrightsisinadmissibleandorderedthereleaseofadetaineewhohadbeensentencedalmostexclusivelyonthebasisofevidenceobtainedundertorture.[14]Inanotherdecision,theSupremeCourtestablishedtheobligationofjudgestoinstitutetwoindependentproceedingsinresponsetoacomplaintoftorture,onetoinvestigatetheallegationsandtheothertodeterminethenecessityofexcludingevidence,therebyavoidingthepostponementofadecisiononadmissibilitytothesentencingstageand,rightly,separatingtheexclusionofevidencefromtheoutcomeoftheinvestigation.[15]InMarch2014,theAttorneyGeneral’sOfficewithdrewchargesinacaseinwhichtheapplicationoftheIstanbulProtocolindicatedthatthepersonsdetainedforallegedinvolvementintheexplosionofacarbombhadbeenvictimsoftorture.TheSpecialRapporteurtruststhatthesedevelopmentsatthefederallevelwillbeconsolidatedandwillbeextendedtothestatelevel.

7.Monitoring

58.PursuanttotheOptionalProtocoltotheConventionagainstTorture,Mexicohashadanationalpreventivemechanismsince2007,whichoperateswithintheorbitoftheNationalHumanRightsCommission.Themechanismisempoweredtovisit,withoutpriornotification,allplacesinthenationalterritorywheretherearepersonsdeprivedoftheirliberty.Between2007andApril2014,themechanismmade3,181visitsandissued53reportswithrecommendationsaimedatvariousauthorities.Thestatehumanrightscommissionsalsovisitandmonitorconditionsindetentioncentres,asdocivilsocietyorganizations,althoughthelatterreportedsevererestrictionsondoingso.

59.TheSpecialRapporteurwasinformedthatthenationalpreventivemechanismdoesnotusetheopportunityaffordedbyitsvisitstodrawuparecordofindividualcomplaintsoftortureandill-treatment.Italsodoesnotfollowupsuchcomplaints.Moreover,notallitsvisitsresultinreportsandpublicfindingsandthereislittlecoordinationwithcivilsocietyindoingpreventivework.TheSpecialRapporteurisconcernedattheassertionbytheauthoritiesoftheFederalInvestigationCentre,wherearraigodetaineesareheld,thatthemechanismcanvisittheCentreonlywiththeauthorizationofthePublicProsecutionService.

60.Judicialoversightoftheenforcementofsentencesisafundamentalguaranteeforpreventingtortureandill-treatment.The2008constitutionalamendmentslaidthebasesforjudicialoversightoftheenforcementofsentences.However,Mexicostilldoesnothaveafederalcourt,andacourtineachstate,thatdirectlyoverseestheconditionsinwhichdetaineesservetheirsentencesorthedisciplinarymeasuresimposedonthem.Eventhoughthereisjudicialoversightoftheenforcementofprecautionarymeasuressuchasarraigo,mostdetaineesintheFederalInvestigationCentrehadnotseenthesupervisoryjudge.Amajorityofstateshaveenactedlawsonjudicialoversightofenforcementofsentences,buteitherthelawstendtobedefectiveandrestrictivewithregardtothejudge’spowerstomonitorconditionsofdetentionorelsetheconceptisinoperative.TheSpecialRapporteurwasinformedthattheFederalCounciloftheJudiciaryhasbeguntoappointsupervisoryjudgesandthattheFederalCongressiscurrentlydiscussingsentenceenforcementbillsthatprovideforjudicialoversightoftheenforcementofanymeasureofdeprivationoflibertyincriminalcases,includingpretrialdetention.TheSpecialRapporteururgestheearlyadoption,implementationandstrengtheningofthismeasurethroughoutthecountry.

D.Conditionsofdetention

61.Conditionsofdetentionvariedamongthedifferentcentresvisited.Overcrowding,however,isaseriousproblemaffectingallthestateprisonsvisitedandmostofthecountry’sdetentioncentres.TheGovernmentreportedatotalprisonpopulationof248,487menandwomen,distributedamongcentreswithatotalcapacityof197,993persons.Ofthe389detentioncentresinthecountry,212areoverpopulated.Thisinformation,althoughworryinginitself,doesnotreflecttherealextentofovercrowding,sincecapacityismeasuredinavailablebedsandnottheapproximately18sq.metresofspace—notcountingcommonareasandtoilets—thateachdetaineemusthaveaccordingtoacceptedstandards.Giventhatbedsarestackedontopofeachotherorcrammedtogetherinverysmallspaces,centressuchasLaMesainTijuanaorNezahualcóyotlBordointhestateofMexico,whichreported260-per-centand120-per-centoverpopulationrespectively,wouldbeovercrowdedevenifthenumberofinmateswereequaltothenumberofbeds.

62.TheGovernmentreportedthatseveraldetentioncentreshadclosedandnewoneswerebeingbuilt.Thishasanimpactonavailablecapacity.Overcrowdingisalsocausedbyafailuretousealternativestoprisonandbyabuseofpretrialdetention,especiallyitsmandatoryapplication.Ofthetotalprisonpopulationof248,487detainees,104,763havebeencharged.TheSpecialRapporteurwastoldofcasesofpretrialdetentionthatconsiderablyexceededtheconstitutionallimitoftwoyears,adelaythatcouldnotbeattributedtothedetainee’sexerciseofhisrightofdefence,andobservedthattherequirementtosegregateunconvictedprisonersfromconvictedprisonersisnotalwaysobserved.

63.Overcrowdingisaggravatedbythestrictregimeoperatinginmostofthecentresvisited.Inmates,boththoseawaitingtrialandthosewhohavebeenconvicted,usuallyspend22to24hoursadayinthecells,withlimitedaccesstotheoutdoorsandtorecreational,employmentoreducationalopportunities.Incentreswheretheregimeisnotsostrict,suchasTopoChicoinMonterreyandSantaMarthawomen’sprisonintheFederalDistrict,considerableflexibilitywasobservedintheregimetowhichdetaineesaresubject.Thisoccasionallyresultsininmateshavingexcessivecontroloverservices,benefitsandthefunctioningoftheprison(inmate“self-rule”),whichgivesrisetodisparitiesintheexerciseofrights,corruptionandsituationsofviolenceandintimidationamonginmates,allofwhichtheStatehasaresponsibilitytoprevent.TheSpecialRapporteuracceptsthatprotectivemeasuresmustsometimesbetakenandthatitisofteninmateswhorequestthem,butsuchmeasurescannotinvolvecruel,inhumanordegradingconditions.HedrawsattentiontotheconditionsobservedintheTopoChicoprison“doghouse”,asmallenclosurewhereover40detaineesallegedlyinneedofprotectionarelivinginunacceptablycrampedandinsanitaryconditions.

64.Theinfrastructureofmostofthecentresvisitedisinpoorcondition.InNezahualcóyotlBordo,SantaMartha,TopoChicoandLaMesaprisons,inmatesgenerallyhadnowater,lightorventilationintheircells.Healthconditionswereusuallygrimandmanyinmateshadtosleeponthefloororinshifts.Cellsneedtobethoroughlydisinfectedtoeliminatechronicskincomplaintsamonginmates.TheSpecialRapporteurreceivedgeneralizedcomplaintsaboutthesmallquantitiesandpoorqualityoffood,asituationthatisnothelpedbythefactthatprisonersarenotgenerallyallowedtoreceivefoodfromfamilymembers.

65.Proceduresforapplyingdisciplinarymeasuresvary,butusuallyinvolvetheconveningofadisciplinarycommitteetoallowtheprisonertobeheardandthemeasurestobereviewed.Inpractice,however,notonlyistheapplicationofdisciplinarymeasuresnotsubjecttojudicialoversight,buttheproperproceduresarerarelyfollowedanddisciplinarymeasuresareinsteadimposedarbitrarilybyprisonstaff.Solitaryconfinementisoftenimposedforextendedperiods,evenmonths,withoutthedetaineebeingallowedtocomeoutortoreceivevisitors.TheSpecialRapporteurobservedacaseinSantaMarthaprisonwhereawomanbeingheldinsolitaryconfinementwasclearlypsychologicallydisturbed.Solitaryconfinementgenerallyinvolvescriticalovercrowdinginsmallcellsandappallingconditions,particularlyinNezahualcóyotlBordo,SantaMartha,LaMesaandTopoChicoprisons.

66.Prisonmedicalservicestendtobepoorwhenitcomestostaffing,medicinesandinfrastructureandmostdonothavesufficientdentists,psychologistsorpsychiatrists.Inmatescomplainedofalackofpromptmedicalassistanceandthatthesituationhadtobeseriousforapersontoreceivecare.Therewerecasesofdetaineeswithchronicillnesseswhowerenotreceivingthemedicinestheyneeded.Themedicalexaminationscarriedoutonadmissiontodetentioncentresareusuallycursoryandmedicalstaffarenottrainedtodetectordocumentpossibletortureorill-treatment.

67.ThefacilitiesoftheBajaCaliforniaAttorneyGeneral’sOfficeinTijuanawereinpoorcondition.Cellsweresmall,withnorunningwater,lightormattresses.TheSpecialRapporteurisconcernedabouttwocellsthatwereemptybutaresosmallthatapersoncouldnotevenliedowninthem.ConditionsintheFederalInvestigationCentrewereadequate,althoughdetaineesspentmostofthetimeintheircells.

68.Forthemostpart,nocomplaintswerereceivedoftortureorill-treatmentbyprisonstaff,althoughtherewerecomplaintsofstaffindifference,high-handedness,arbitrarinessandcorruption.Nevertheless,theSpecialRapporteurwastoldofcasesoftortureandill-treatmentindetentioncentres,includingcasesdocumentedbyhumanrightscommissions,andhecallsontheGovernmenttostrengthenandguaranteetheexistenceofconfidential,accessibleandindependentcomplaintmechanismswithinsuchcentres.

1.Women

69.Similarconditionswereobservedinwomen’sprisons,althoughtheirimpacttendstobegreaterbecauseofthespecificexperienceofwomeninmates,includingmotherswhosechildrenarewiththem,andtheabsenceofagenderapproachinprisonpolicy.InSantaMarthaprison,inmates,includingmothers,arelivinginovercrowdedconditions,havetosharemattressesandhavelimitedaccesstowaterandsuitablefood.Over60percentofwomenprisonersinthecountryareinmixedcentres,wheretheytendtobeheldinconfinedareasandsharecommonareaswithmaleprisoners.TheSpecialRapporteurobservedalackofspecializedgynaecologicalandpsychologicalcare,aswellasalackofattentiontowomen’shygienicandbiologicalneeds.Medicalcareforpregnantwomenandnursingmotherswasalsopoor.Women’sreproductivecapacitiestendtobestrictlycontrolled:contraceptiveuseisimposedforaccesstoconjugalvisitsortheyareforcedtousespecificcontraceptivemethods,suchasinjectionsorIUDs,eventhoughtheymaypreferlessinvasivemethods.Thereisalackofrehabilitationprogrammeswithagenderapproachandofmeasurestohelpwomenstayintouchwiththeirfamiliesandcommunities:visitingisoftendifficultorwomenaredetainedincentresfarawayfromtheirfamilies.

2.Minors

70.Underarticle18oftheConstitution,minorsagedover12andunder18canbedeprivedoftheirlibertythroughaspecializedcriminaljusticesystem.TheinfrastructureoftheSanFernandoRehabilitationCentreintheFederalDistrictandtheJuvenileOffendersRemandandRehabilitationCentreinMonterreywasinpoorconditionandnotconducivetoeducationandsocialreintegration,althoughtherewasnoovercrowding.Inbothcases,theSpecialRapporteurreceivedcomplaintsofpoorfoodanddelayedorincompletemedicalcare.

71.TheSpecialRapporteurfoundthesituationintheMonterreycentreparticularlyworrying.Minors,especiallyboys,spendover22hoursadayintheircellsandcanusethetoiletsonlywhenauthorized.Minorsofbothsexesagreedthatthebehaviourofsecuritystaffishigh-handedanddisrespectfulandsaidthattheyhavelessthananhouraweekforoutdoorphysicalactivities.TheSpecialRapporteurwastoldthatminorsareoftenforcedtodostrenuousphysicalexercisesasaformofpunishmentorplacedinsolitaryconfinementforextendedperiods,sometimeshandcuffedandnaked,incellswhereconditionsareunacceptable.Girlshavebeenlefthandcuffedtotoiletsorwashbasinsforseveraldaysasapunishment.

E.Migrants

72.Becauseofitslocation,Mexicoisoneofthemaincountriesoforigin,destination,transitandreturnofmigrants.Migrantsareextremelyvulnerabletoactsofviolencebyprivateindividuals.TheSpecialRapporteurisconcernedabouttheimpunitythatusuallysurroundssuchcrimesandtheinformationhereceivedthatpublicemployeescolludeinortoleratesuchpractices.Moreover,migrantarrestsbypublicemployeestendtobeviolentandaccompaniedbyinsults,threatsandhumiliation.

73.TheconditionsobservedattheSigloXXImigrantholdingcentreinTapachula(Chiapas)aregenerallyadequateforshortperiodsofdetention.However,detaineeswholodgeappealsgenerallyspendlongperiodsindetention.TheGovernmentshouldrestricttheuseofdetentiontoexceptionalcases,improveconditionsofdetentionandavoidprolongedperiodsofdetention.Unaccompaniedboysarehousedintheholdingcentre,whileunaccompaniedgirlsaretakentopublicandprivatehostelswhereconditionsaregenerallypoorandthereisnopropersupervisiontodetecttraffickingandidentifyneeds.TheSpecialRapporteurnotesthat,whilehereceivednocomplaintsorill-treatmentortortureattheSigloXXIcentre,hedidreceivecomplaintsaboutincidentsatseveralofthecountry’smigrantholdingcentres,inwhichmigrantswereinsulted,threatened,humiliatedandbeaten.TheSpecialRapporteurisconcernedthatlawyersandcivilsocietyorganizationshavelimitedaccesstoholdingcentrestomonitorandassistmigrants.

F.Personswithdisabilities

74.Mostpersonswithdisabilitieswhoareintheprisonsystemarenotincentresreservedfortheirpropertreatment,butarehousedinconfinedareasofprisonscharacterizedbyinsanitaryconditionsandovercrowding,aproblemthatiscompoundedbytheirhealthneeds.Detentioncentresdonothavethefacilities,resourcesortrainedstafftoprovidedecenttreatmentandthenecessarymedicalandpsychologicalcaretopersonswithdisabilities,whospendalmosttheentiredaylockedup,sometimesinisolationandinharshconditions.TheconditionsobservedinthepsychiatricwingsoftheTopoChico,LaMesaandNezahualcóyotlBordoprisonsconstitutecruel,inhumanordegradingtreatment.

75.ConditionsattheNationalPsychiatricInstituteareexcellent.However,theSpecialRapporteurreceivedcredibleinformationaboutpoorconditionsatotherpublicandprivatepsychiatriccentres,includingpoorhygiene,insanitaryconditions,substandardmedicalcare,theuseofprolongedrestraints,andtreatmentsorinternmentsthatdonotmeetinternationalstandardsofinformedconsent.TheSpecialRapporteurdrawstheGovernment’surgentattentiontothedeplorableconditionsattheSocialAssistanceandIntegrationCentrethathevisitedintheFederalDistrict.DespitetheadmirableworkbeingdonebytheCentre’sstaffwithverylimitedresources,therearepersonswithseriousdisabilitiesandchronicunmetmedicalneedswhohavebeenlivingthere,someofthemforover20years,ininsanitaryconditionsandastateofabandonment,withlittlelikelihoodofrehabilitation.Thesepersonsreceivesocialassistanceandlittleelse;theyhavenohealthcareandtherearenosafeguardsforthepreventionoftortureandill-treatment.

IV.Conclusionsandrecommendations

A.Conclusions

76.Tortureandill-treatmentinthemomentsfollowingdetentionandbeforedetaineesarebroughtbeforeajudgearegeneralizedinMexicoandoccurinacontextofimpunity,theaimusuallybeingtoinflictpunishmentortoextractconfessionsorinformation.Thereisevidenceoftheactiveparticipationofpoliceandministerialpoliceforcesfromalmostalljurisdictionsandofthearmedforces,butalsooftolerance,indifferenceorcomplicityonthepartofsomedoctors,publicdefenders,prosecutorsandjudges.

77.Safeguardsareweak,especiallythosefordetectingandpreventingtortureinthesefirstmomentsofdetentionandensuringitsprompt,impartial,independentandexhaustiveinvestigation.Detentionrecordsandmedicalexaminationsareofteninadequateanddonotmentionallegationsorevidenceoftorture;thereisinadequatemonitoringofthelegalityofdetentionorthedeadlineforbringingdetaineesbeforethePublicProsecutionService;detaineesarenotgivenimmediateaccesstoanadequatedefence;detainees’statementsaregivenwithoutjudicialoversightorthepresenceofalawyer;investigationsarenotlaunchedautomaticallyandevidenceobtainedundertortureisnotexcludedautomatically;andtheIstanbulProtocolisbeinginterpretedrestrictivelyandincorrectly.

78.TheGovernmentacknowledgestheneedtostrengthensafeguards.Thelegislativeframeworkhasbeenstrengthenedbythe2008and2011constitutionalamendmentsandtheGeneralVictimsActandinpartbytheamendmenttotheCodeofMilitaryJusticeprohibitingmilitarycourtsfromhandlingcasesofhumanrightsviolationscommittedagainstcivilians.Proposalsareunderdiscussionthatwouldbringthefederaldefinitionoftortureintolinewithinternationalstandards,restricttheapplicationofarraigoandcreatethepositionofsentenceenforcementjudge.TheSupremeCourthasplayedanactiveroleinguaranteeinghumanrightsbyadoptingdecisionsthatrestrictarraigoandmilitaryjurisdiction,makedecisionsoftheInter-AmericanCourtofHumanRightsbindingonMexico,emphasizetheobligationautomaticallytoinvestigateanyallegationoftortureandexcludeevidenceobtainedasaresultoftortureorviolationsoffundamentalrights.Therecentadoptionoftheprotocoldirectingtheconductofjudgeshearingcasesoftortureisapositivestepforstrengtheningsafeguards.However,thenumberofreportedcasesoftortureremainshighandunderrepresentstheiractualincidence.TheGovernmenthasnotsucceededinreversingtheprevailingimpunity,norhasitmadeprogressinensuringthenecessarycomprehensiveredress.

79.TheSpecialRapporteurexpresseshisextremeconcernattheSeptember2014eventsinIguala(Guerrero),wheremunicipalauthorities,incollusionwithorganizedcrime,forciblydisappeared43studentteachers,executedafurther6,someofwhosebodiesshowedclearsignsoftorture,andinjuredmorethan20people.ThisunacceptabletragedyurgentlydemandsthattheGovernmentimplementstructuralreformsintheareaofsecurity,thefightagainstcorruptionandhumanrightsguarantees,whichmustincludesolutionstotheproblemshighlightedinthisreport,especiallyimpunityandweakguaranteesforpreventinganderadicatingtorture.TheSpecialRapporteurcallsontheGovernmenttoexpandonthemeasuresalreadytakentoguaranteethattheseeventsaresubjecttocriminalinvestigation,thatthedisappearedpersonsarelocatedandthatsucheventsdonothappenagain.

B.Recommendations

80.Impunityfortortureandill-treatmentencouragestherepetitionandescalationoftheseoffences.Tocombatsuchimpunity,theSpecialRapporteur,inadditiontotherecommendationsmadeabove,recommendsthefollowing:

(a)Recognizepubliclytheextentofimpunityfortortureandill-treatmentandsendstrongpublicmessagestoallfederalandstatesecurityandjusticepersonnelthatalltortureandill-treatmentwillbeseriouslyinvestigatedandpunished,inkeepingwiththenormsofinternational,constitutionalandcriminallaw;

(b)Takeallnecessarymeasurestopreventandseverelypunishanyreprisalagainstvictimswhoreporttortureorill-treatment,theirfamilymembers,theirrepresentativesandhumanrightsdefenders;

(c)Guaranteetherightofallvictimstocomprehensiveredress.

81.Withrespecttothelegislativeframework:

(a)Promulgateageneralactontortureandill-treatmentthatdefinestorturethroughouttheRepublicinkeepingwiththebroadeststandardoftheInter-AmericanConventiontoPreventandPunishTortureandensurethatfederalandstatelawssetoutalltheobligationsandguaranteesderivingfromtheabsoluteprohibitionoftorture,suchastheobligationtoinvestigate,prosecuteandpunishcasesoftorturepromptly,independently,impartiallyandexhaustively,thenon-applicabilityofstatutorylimitationstothecrimeoftortureandvictims’righttoredress;

(b)AmendtheCodeofMilitaryJusticetoensurethatcasesofhumanrightsviolationsallegedlycommittedbyonesoldieragainstanotheralsocomewithinthejurisdictionofthecivilianauthorities;

(c)IntheConstitution,theNationalCodeofCriminalProcedureandanyapplicablelaw,restrictinstancesofdetentionwithoutajudicialwarranttocasesofinflagrantedelicto;

(d)Completelyabolisharraigo,aswellassimilarmeasuresinfederalorstatelaw;

(e)EliminatetheprovisionsonpretrialdetentionwithoutformalchargesfromtheConstitutionandlaws;

(f)Adoptthenecessaryfederalandstatelegislationtoguaranteejudicialoversightofenforcementofsentences,includingprecautionarymeasures,pretrialdetention,conditionsofdetentionanddisciplinarymeasures;

(g)Legislatetheuseofforceinaccordancewithinternationalprinciples,trainmembersofthesecurityforcesinthesestandardsandinvestigateandpunishinstancesofexcessiveuseofforce.

82.Withregardtoinvestigations:

(a)Ensurethatallinstancesoftortureandill-treatment,includingthosedatingbacktothedirtywar,areinvestigatedpromptlyassuch;ensurethatinvestigationsareimpartial,independentandexhaustiveandthatthoseresponsiblearetriedandpunishedunderbothcriminalandadministrativelaw;andensurethatboththematerialauthorsandthosewhoordered,tacitlyorexplicitlyacquiescedinordidnotpreventorreporttortureareinvestigatedandpunishedandthatthepenaltiesarecommensuratewiththeseriousnessofthecrime;

(b)Guaranteetheimmediateadministrativesuspensionofanyofficialwhoisunderinvestigationfortortureandill-treatment;

(c)Documentandpunishcasesinwhichjudgesorprosecutorsfailedtoorderinvestigationsoftortureautomaticallyuponreceivingcomplaintsorobservingpossibleindicationsoftorture;

(d)GuaranteethatmedicalexaminationsarecarriedoutpromptlyandinaccordancewiththeIstanbulProtocolbyindependentstafftrainedinthestandardsgoverningitsapplication,provideacopyofexaminationsoncetheyarecompletedandensurethattheabsenceofphysicalevidenceinthemedicalexaminationisnotinterpretedautomaticallyasmeaningthatnotorturetookplace;

(e)Guaranteetheseparationofforensicservicesfrompublicprosecutionservicestoensuretheirindependenceandimpartiality;

(f)Ensurethatforensicinvestigationsbyprivateindividualsareadmittedintoevidenceandgiventhesameweightasofficialinvestigations.

83.Withregardtopreventivemeasures:

(a)Completelywithdrawmilitaryforcesfromlawenforcementactivitiesandrestricttheirparticipationtosupportoperationssupervisedbycivilianjudicialbodies;

(b)Ensuretheimmediateandcomprehensiverecordingofdetention,followedbyathoroughmedicalexaminationthatrecordsanyevidenceorallegationoftortureorill-treatment,andtheimmediatenotificationofapersonofthedetainee’schoosing,andestablishpenaltiesfornon-compliance;

(c)Guaranteeconfidentialaccesstoalawyerfromthemomentofdeprivationoflibertyandthepresenceoflegalcounselduringanypartoftheinvestigation,failingwhichitwillberulednullandvoid.Ensurethatdetainees’statementsareruledadmissibleonlyiftheyaregivenbeforeajudicialauthorityinthepresenceoftheirdefencecounsel;

(d)Orderprosecutorsandjudgesautomaticallytoexcludeanyevidenceorstatementconcerningwhichthereisreasontobelievethatitwasobtainedasaresultoftortureorill-treatmentorinviolationoffundamentalguaranteesandtolaunchthecorrespondinginvestigations,imposeontheStatetheburdenofprovingthattheevidencewasnotobtainedundertortureandguaranteethatunlawfulevidenceisexcludedfromtheoutsetandthatitsexclusionisnotpostponeduntilsentencing;

(e)Increasethemandatoryuseofsecuritycamerasandotheroversightmechanismsduringinterrogationsandpatrols;

(f)EnsurethatdetaineesarebroughtpromptlybeforethePublicProsecutionServiceorjudicialauthorityandinstructprosecutorsandjudgestomonitor,detectandinvestigateirregularitiesinthedetention;

(g)Strengthenthepublicdefender’soffices,ensuretheirautonomyandincorporatemechanismsformonitoringtheirconduct,andguaranteeparityinthetrainingandresourcesgiventopublicdefender’sofficesandpublicprosecutionservices;

(h)Continuetrainingpublicservantsinthepreventionanderadicationoftortureandill-treatment,includingthetreatmentofvictimsandtheirfamilymembersinamannerthatdoesnotrevictimizethem.

84.Withregardtomonitoring:guaranteetheindependenceofhumanrightscommissionsandthenationalpreventivemechanismandencouragethenationalpreventivemechanismtocooperatewithcivilsocietyorganizationsandstatehumanrightscommissions.

85.Withregardtotheconditionsofdetentionofadultsandminors:

(a)Takestepstoreduceovercrowding,usingpretrialdetentionasanexceptionalmeasureandrespectingitsmaximumlawfulduration,andincreasetheuseofalternativestoprison;

(b)Guaranteeappropriatefinancialandhumanresourcesforimprovingconditionsofdetention,includingthequalityandquantityoffood,sanitaryconditionsandaccesstoemployment,recreationalandeducationalopportunities;

(c)Introduceaccessible,confidentialandindependentcomplaintmechanisms;

(d)Ensurethatpersonsaredetainedincentresclosetotheircommunitiesandfamilies;

(e)Ensurethatdisciplinarymeasuresarealwaysappliedaccordingtojudiciallysupervisedproceduresthatallowtheinmatetoknowandquestionthereasonsfortheirapplication;ensurethatsolitaryconfinementisnotusedformorethan15days,andinnocircumstancesforminorsorpersonswithmentaldisabilities,andthatitdoesnotinvolveinhumaneconditionsofovercrowdingorinsanitariness;

(f)Urgentlyimprovetheprovisionofmedical,dentalandpsychologicalcaretoinmates,withincreasedhumanresources,moremedicinesandbetterinfrastructure;ensurethatdetaineesundergoacomprehensivemedicalexaminationonentryortransfer,includingthedocumentingofpossibletorture;

(g)Guaranteeappropriatemedicalandpsychologicalcareforwomenprisoners,payingspecialattentiontogynaecologicalandreproductiveneeds,pregnantwomenandmotherswhosechildrenarelivingwiththem.

86.Ensurethatallwomenwithoutdiscriminationareabletoexercisetheirreproductiverights,includingaccesstosafeabortionwherethelawpermits,makingsurethatthereisnodiscriminationorimpediment,suchastherequirementthatacriminalcomplaintbelodgedorpriorjudicialauthorizationbeobtained.

87.Withregardtomigrants:

(a)Takestepstoreducetheviolencetowhichtheyareexposed,includingdueinvestigationandpunishmentofthoseresponsible;

(b)Facilitateaccessbycivilsocietyorganizationsandlawyerstomigrantholdingcentresandtoconfidentialinterviewswithmigrants.

88.Withregardtopersonswithdisabilities:

(a)Attendurgentlytothemedicalandassistanceneedsofpersonswithdisabilitieswhoarebeingheldintheprisonsystemandinpsychiatrichospitals,inordertoguaranteethemadecentlifeandaccesstotreatmentsappropriatetotheircondition;

(b)Investurgentlyinimprovingconditionsinsocialassistancecentres,especiallywithrespecttomedicines,sufficienttrainedmedicalstaff,shelter,foodandrehabilitationopportunities.

GE.14-252881

[*]*The summary of the present report is being circulated in all official languages. The report itself is contained in the annex to the summary and is being circulated in the language of submission and in English only.

[1]E/CN.4/1998/45, appendix V.

[2]Political Constitution, arts. 19 and 22.

[3]Ibid., art. 20.

[4]Ibid., art. 1.

[5]Ibid., arts. 18, 97, 102 and 105.

[6]Ibid., arts. 103, 104 and 107.

[7]Supreme Court of Justice, Amparoen Revisión (Amparo Review) No. 703/2012, para. 168.

[8]Supreme Court of Justice, Protocol directing the conduct of justice officials in matters involving acts constituting torture and ill-treatment.

[9]Supreme Court of Justice, Amparo Review No. 703/2012.

[10]Supreme Court of Justice, Amparo Review No. 90/2014.

[11]See CAT/C/MEX/CO/5-6, para. 11, CAT/OP/MEX/1, paras. 212 to 238, A/HRC/19/58/Add.2, para. 88, and E/CN.4/2003/8/Add.3, para. 50.

[12]Supreme Court of Justice, Action of Unconstitutionality No. 29/2012 and Amparo Reviews Nos. 164/2013 and 38/2014.

[13]National Code of Criminal Procedure, art. 321.

[14]Supreme Court of Justice, Amparo Review No. 703/2012.

[15]Supreme Court of Justice, Direct Amparo Review No. 90/2014.