This update covers developments relating to the freedoms of expression, association and peaceful assembly in Luxembourg from 28th February until 31st October 2025.
GENERAL
“Freedom to have an abortion” to be enshrined in the Constitution
On 6th October 2025, members of the Institutions Committee reached a compromise regarding the inclusion of voluntary termination of pregnancy in the Constitution. Since 2024, discussions have focused on whether to use the term ‘right’ or ‘freedom’ in the constitutional text. Finally, the decision is to enshrine the freedom to have an abortion in its Constitution, not the right. The change needs to approved by a two-thirds majority in the Chamber of Deputies.
ASSOCIATION
Transition time to adapt to new law on association is over
The 7th August 2023 Act on non-profit associations and foundations entered into force on 23rd September 2023 and contained a two-year transitional period to adapt. All associations and foundations were legally required to adapt their statutes during that time. The reform was intended to modernise the non-profit sector and prevent money laundering, but has drawn criticism for creating heavy administrative burdens regardless of NGO size, in particular regarding accounting transparency. In October 2025, the Ministry of Justice estimated that only 37% of Luxembourg’s 9,300 associations were compliant.
28 CSOs join forces in a new group called Voĉo
On 24th April 2025, 28 Luxembourg organisations officially launched Voĉo, a group aimed at representing and defending the voice of civil society in Luxembourg. The group is composed of organisations representing environmental, social, human rights and international solidarity causes. The group’s ambition is to get more listening and more involvement on the part of the government.
ASSEMBLY
Proposed expansion of police dispersal powers met with criticism from various sides
In July 2024, the government proposed an expansion of police dispersal powers through draft law 8426. The proposal would allow the police to remove, by force if necessary, an individual disrupting access to a private or public place. In February 2025, the Council of State issued an opinion raising half a dozen formal objections. The Council of State questioned for example the proposal to allow mayors instead of judges to impose temporary bans from specific locations on repeat offenders and criticised the subjective criteria officers would use to determine whether an individual is causing a nuisance in public or publicly accessible spaces.
In March 2025, Vôco also raised concerns about the draft bill and denounced this proposed legislation as “potentially repressive”.
Voĉo's member associations are particularly concerned that the categories used by the bill to describe the behaviours targeted, such as public peace, health or safety, are excessively vague and therefore susceptible to varying interpretations, which is contrary to the principle of legal certainty. The ‘enhanced Platzverweis’ in its current form could become a practical tool for suppressing public gatherings, sporting events or demonstrations.
- Voĉo statement
Amendments were then introduced in May 2025. The Vôco collective maintained that the bill is still “vague, arbitrary, and potentially discriminatory”. The Luxembourg Advisory Commission on Human Rights deplored the fact that amendments to the bill do not take into account their recommendations and did not provide any justification therefor.
Annual report on human rights situation points at increasingly repressive measures
On 4th June 2025, the Luxembourg Advisory Commission on Human Rights issued its 2024 annual report. It notes the introduction of increasingly repressive measures, naming in particular: the ‘reinforced Platzverweis’ (expulsion order bill – see above), the criminalisation of aggressive begging and restrictions on the right to demonstrate.
Although the Advisory Commission on Human Rights is increasingly called upon to give its opinion on proposals or draft legislation, it must be noted that our recommendations are frequently dismissed or ignored by the authorities. This approach risks not only undermining the very role of an independent advisory body, but also raises questions about the real political will to place human rights at the heart of public policy.
- President of the Luxembourg Advisory Commission on Human Rights
Condemnation of draft law on outdoor public gatherings by trade union
A previous update already mentioned the 2023 draft law proposal on outdoor public gatherings and the concerns that were raised by organisations such as Amnesty International. In March 2025, the Chamber of Employees (Chambre des salariés – CSL) published an opinion, expressing its fundamental opposition to this draft bill and calling for its immediate and outright withdrawal, arguing that there is no valid reason for legislation in a democratic society to restrict the freedom of peaceful assembly.
Large demonstration against pension reform
On 28th June 2025, about 20 000 people participated in a mobilisation organised by the two largest trade unions (OGBL and LCGB) against the government's pension reform. They also denounced the plans to extend the maximum working hours allowed on Sundays, and demanded structural reforms, including the introduction of a staffing ratio that ensures teams are sufficiently resourced and protected.
Protest in favour of enshrining the right to abortion in the Constitution
On 15th September 2025, when the topic of enshrining abortion into the Constitution was discussed in Parliament (see above), around 70 people gathered outside the Chamber of Deputies to call for the inscription of the right to abortion in the Constitution. Demonstrators carried signs reading ‘My body, my choice’, ‘A child is a choice, abortion is a right’. There were members present from CID Fraen An Gender, Socialist Women, OGBL Equality, Planning Familial, and Amnesty International.
Protest against the decision to allow Israeli sovereign bonds
On 4th September 2025, 40 people demonstrated outside the national financial regulator, CSSF, which approved a prospectus allowing Israel to issue government bonds on European financial markets. According to the protesters, this decision directly supports the policy of the Netanyahu government and runs the risk of later being accused of complicity in the crime of genocide.
Pro-Palestine march
On 28th September 2025, some 5600 people participated in a peaceful march in Luxembourg to demand an end to the genocide in Gaza. Amnesty International, the Committee for a Just Peace in the Middle East (CPJPO) and Doctors Without Borders were among the organisations present.
CSOs ask for more constructive dialogue with the government
On 7th October 2025, representatives of 33 organisations gathered before the press on Place Clairefontaine in Luxembourg to make a joint appeal to the government: dialogue with NGOs must be taken seriously again. They feel that NGOs are appreciated for their services but not their critical stance.
We want them to re-evaluate their priorities and establish a constructive dialogue with civil society actors. We must all work together to uphold and guarantee the fundamental values we hold—justice, sobriety, solidarity and social inclusion—in our society. Today we are here because we want to protect, safeguard and defend these principles.
- Magali Paulus of Citizens for Ecological Learning and Living
EXPRESSION
Teacher dismissed over pro-Palestinian social media posts
On 7th October 2025, the Education Ministry fired a primary school teacher for social media activity in support of Palestine. The teacher sees her dismissal as the result of a continuous, targeted campaign to frame her pro-Palestine activism as antisemitic, but confirmed during a summons to the Ministry that she had nothing against Jews and that her posts were anti-war.
This was the first-ever dismissal by the Education Ministry of an employee over social media activity.
National Action Plan for the Safety of Journalists
On 29th April 2025, the Ministry of Justice presented its National Action Plan for the Safety of Journalists. Its main objectives are to prevent risks to and threats against journalists; to improve cooperation between public institutions and media actors; to ensure effective prosecution of those who commit acts of violence or intimidation and, finally, to raise public awareness of the importance of journalism for the proper functioning of democracy. The Action Plan is implemented by an interministerial working group which assesses attacks against journalists.
LGBTQI+
New Action Plan for LGBTIQ+ rights
In July 2025, the Ministry of Gender Equality and Diversity published a National Action Plan on the promotion of LGBTIQ+ rights. This action plan comprises more than 80 measures and 140 actions and complements the two other plans launched by this Ministry in 2025: the National Action Plan for Gender Equality and the National Action Plan against Gender Discrimination.
The Luxembourg Advisory Commission on Human Rights commended the adoption of such a plan as well as the ban on conversion therapies, but noted that the plan did not meet the legitimate expectations of LGBTIQA+ people and lacked clarity on various topics such as the introduction of a ‘neutral’ option for non-binary persons in identity documents and the automatic recognition of parentage between same-sex parents and their child born through medically assisted reproduction or surrogacy.