This update covers developments relating to the freedoms of expression, association and peaceful assembly in Luxembourg from 1st November 2024 to 27th February 2025.
GENERAL
Trust in democracy
On 25th February 2025, the latest results of the Polindex survey examining democratic satisfaction, confidence in institutions and political mistrust were presented at the Chamber of Deputies. The survey was conducted by the University of Luxembourg and the Ilres polling institute on behalf of the Chamber of Deputies. It reveals a modest decline in satisfaction with democracy among Luxembourg residents. Satisfaction with the country’s democratic system has fallen from 90% in 2004 to 68% in 2024. Despite this trend, trust in certain institutions remains strong, with the European Court of Justice emerging as the most trusted entity.
Limited access to the winter shelter for the homeless
From 15th November 2024 until 15th April 2025, an emergency Winter Action structure at Findel Airport accommodates homeless people. For this year’s edition, the government imposed a new restriction: anyone wishing to benefit from the accommodation must be able to prove that they have been living in Luxembourg for a minimum number of months.
The Consultative Commission on Human Rights has voiced criticism of this decision and denounced a selection based on the arbitrary criterion of length of stay, thereby reinforcing the stigma attached to their origin or the precariousness of their resources.
Call to investigate the local entities of the Israeli spyware company NSO
On 13th November 2024, a group of civil society organisations signed an open letter to the financial sector supervisory commission (Commission de Surveillance du Secteur Financier) calling for an investigation into the operations of the Israeli spyware company NSO, which has several registered entities in Luxembourg. According to the CSOs, the activities of the NSO group can be considered illegal as they violate the right to privacy and civil liberties, and breach human rights laws and export laws.
The NSO group is the creator of the controversial military grade spyware Pegasus which has been used to spy on activists, lawyers, journalists and political opponents.
The Spanish Iridia Center of Defense of Human Rights has filed lawsuits against entities registered in Luxembourg that are part of the NSO group, on behalf of some of the people targeted with the Pegasus spyware in Spain.
EXPRESSION
Press Council demands mandatory reply obligation for information requests and increased budget
On 22nd January 2025, Lynn Warken, president of the Press Council, emphasised the need for better communication and a more human relationship between the press and the political process during a reception between the press and the Prime Minister Luc Frieden.
She extolled the government’s proposed bill on access to information for journalists but emphasised the need for a mandatory reply obligation for information requests for the press as well as an increased budget for the Press Council.
Press council criticises ban to name fraud case culprit
On 19th December 2024, the Court of Appeal upheld the ban on the media RTL Luxembourg from identifying the perpetrator in an embezzlement scandal dating back to the early 2000s.
Jos Nickts was the president of the Trade Union Federation of Luxembourg Postal Delivery Staff from 1986 to 2002. In 2007 he was found guilty of embezzling around 560 million Luxembourgish francs (USD14,573,000) from savings given by around 500 postal workers to the investment fund of the union. He was condemned to a six-year prison sentence, of which two years were suspended. In 2017, RTL produced a documentary about the affair. The convicted man filed a complaint, citing his right to privacy as he had completed his prison sentence, and demanded that his face and name not be linked to the affair publicly anymore.
The Court of Appeal confirmed the first judicial decision agreeing with Jos Nickts, ruling that he had served his sentence and benefits from the “right to be forgotten”. In the future, his name has to be anonymised and his face blurred.
In a sharp rebuke, the Luxembourg Press Council has condemned a recent court ruling restricting RTL Luxembourg from naming convicted fraudster in a high-profile embezzlement case, warning it undermines press freedom and the public's right to information. https://t.co/u4V8FjuaJN
— RTL Today (@rtl_today) January 28, 2025
The Luxembourg Press Council criticized this decision and plans to challenge it in higher courts. In a statement it denounces that “the judiciary prohibits journalists from revealing the truth about one of the most significant embezzlement cases of the past 25 years”. According to the Press Council, the Court erred on various points and should have prioritised freedom of expression over the protection of privacy. According to the Council, the right to be forgotten does not apply in this affair that involves a nationwide breach of trust and forgery having led to a heavy sentence. The Council also denounces that imposing preventive measures by restricting future publications, effectively amounts to censorship.
ASSOCIATION
Follow up of Caritas scandal
On 26th November 20254, a Dei Gréng (The Greens) MP, Sam Tanson, denounced that one of the consequences of the Caritas scandal is the increased difficulty for associations to obtain credit lines from banks. According to her, they “are now faced with much stricter conditions than before for obtaining credit lines and financial support from banks”.
On 29th December 2024, the head of international cooperation at Caritas announced that some international projects had been rescued, such as the winter programme in Ukraine, or taken over by local NGOs, like in Kosovo.
The special Caritas commission met almost every other week between 23th October 2024 and 5th February 2025 and has meetings planned in March 2025.
To recall, a newly founded ASBL HUT (Help on the Ground) was created on 1st October 2024 to take over for the national activities. Some former employees launched a legal action, as they are of the opinion that HUT taking over Caritas and its staff was part of a transfer of business and that special labor laws should therefore apply.
Reactions after announcement of USAID freeze
On 10th February 2025, Foreign Minister Xavier Bettel reacted to the announcement of the USAID freeze by warning that it would lead to “long-term global instability” and that the short-term savings will have long-term severe consequences.
On 12th February 2025, Minister Xavier Bettel made a statement on Luxembourg’s international cooperation and humanitarian action policy, followed by a parliamentary debate. The Cercle de Coopération des ONG de développement (Development NGOs Cooperation Circle) welcomed this affirmation of the foundations of international solidarity.
On 12th February 2025, the party dei gréng (the Greens) proposed a motion inviting the government to support a coordinated European response to compensate for the reduction in USAID funding. The motion was rejected by 40 votes against 20 in favour. The same day, the dei gréng party submitted a bill to enshrine in legislation the country’s commitment to allocate at least 1% of its gross national income to development aid.
Judicial homologation of amendments to associations’ articles no longer required
On 9th December 2024, the law resulting from draft Bill No. 8420, amending the law of 7th August 2023 on nonprofit associations was published in the Official Journal.
The new law abolishes the homologation procedure and streamlines dissolution procedures across all assocations and foundations. Previously, a modification to the articles of association or a decision to dissolve an association required court approval under certain conditions. According to the Ministry of Justice, this new law simplifies administrative procedures, reduces the burden on the courts and establishes uniform rules for all associations.
Employment practices of non-profit under scrutiny
In November 2024, half of the 34 employees of the non-profit association Centre d’appui social et associatif (“CASA”) were laid off following investigations by the Inspectorate of Labour and Mines (ITM) and the National Employment Agency (ADEM) into irregularities in the association’s employment practices. The main aim of the association is to integrate immigrants by providing social assistance in various areas. The association came under scrutiny for its use of “Compensated Temporary Occupation” (OTI) contracts, which are permitted for foundations but not for non-profit associations in Luxembourg. The association had received preferential treatment which was questioned in a parliamentary debate held on 15th January 2025.
The MEPs expressed the wish to continue the discussion on the various employment statuses at a forthcoming meeting of the Labour Committee. To bring clarity on changes to the law governing associations and foundations and to support them, the communication department of the Ministry of Justice points out that a dedicated website has existed since 2023.
Increase in bank fees hampers small CSOs
According to a small CSO that contacted the media RTL, on 1st January 2025, the Banque Internationale à Luxembourg (BIL) raised its account-keeping costs for associations. For this CSO that contacted the news agency anonymously, this represents an overall increase of 400%. The account maintainance fees increased from EUR 5 (USD 5) to EUR 25 (USD 26.21) a month, a large sum for small associations.
ASSEMBLY
Authorisation to hold protest comes late for organisations
In an interview with the online newspaper Virgule, David Pereira, the Director of Amnesty International Luxembourg, pointed to various human rights violations in the world but also stressed that in Luxembourg some rights were also restricted. He cited for example the need to ask permission when organising demonstrations. He complained that organisors ask for permission two months in advance but receive authorisation almost a week before the event, creating difficulties.
As the government is working on a bill on gatherings in public places[LVdE1] , Amnesty International is calling for vigilance.
Solidarity with Ukraine
On 22nd January 2025, on the third anniversary of the war in Ukraine, the LUkraine association organised a solidarity march under the theme “Justice for Ukraine, Peace for Europe” in Luxembourg city.
Teachers call for greater respect and support
On 24th January 2025, the Science and Education Union, part of the Independent Luxembourg Trade Union Confederation (OGBL), held a protest to demand that teachers’ voices be heard in decisions affecting public schools.
Piquet de protestation organisé ce soir devant la Chambre des députés par le SEW/OGBL pour une école publique forte, juste, inclusive, sans violence ni harcèlement. pic.twitter.com/RuttxbnXK7
— OGBL Luxembourg (@OGBL_Luxembourg) January 23, 2025
Unions against planned liberalisation of shop opening hours
On 5th February 2025, MPs debated the planned liberalisation of shop opening hours. Members of the Independent Luxembourg Trade Union Confederation (OGBL) and the Luxembourg Confederation of Christian Trade Unions (LCGB) staged a demonstration outside the Chamber of Deputies to protest the proposed change.
Solidarity with protesters in Serbia
On 8th February 2025, almost 100 protestors gathered in Luxembourg City to show solidarity with Serbian citizens demanding accountability for the fatal collapse of a train station roof in Novi Sad in November 2024.
LGBTQIA+
Opposing petitions on LGBTQIA+ issues in schools
On 28th January 2025, the Chamber of Deputies discussed two antagonist petitions concerning LGBTQI+ issues in education. One petition called for them to be excluded, the other for greater emphasis. The two public debates are available online. Most MEPs were of the opinion that these themes have their rightful place in the national school system and should not be excluded from education, but that they should be adapted to the age of the pupils. The President of Rosa Lëtzebuerg, a non-profit organisation advocating for the rights of the local LGBTQIA+ community, welcomed this support.