Experts of the Committee on the Elimination of Racial Discrimination Commend Maldives on Health Services for Migrants, Raise Questions on Provision Requiring Human Rights Commission Members to be Muslim and Migrant “Quota Trading”
The Committee on the Elimination of Racial Discrimination today concluded its consideration of the combined thirteenth to fifteenth periodic report of the Republic of Maldives, with Committee Experts commending the State on efforts to improve access to health services for migrants, while raising questions on the provision which required members of the Human Rights Commission to be Muslim, and efforts to correct migrant “quota trading”.
Chinsung Chung, Committee Expert and Country Co-Rapporteur, said the Committee appreciated the cooperative efforts of the Government of Maldives, most notably the Ministry of Health, with the United Nations in Maldives to improve equitable access to health services for migrants. A key milestone was the development of a migration health policy, which had been approved by the Government and officially launched on 30 June 2025.
Chrispine Gwalawala Sibande, Committee Expert and Country Rapporteur, said Maldives had stated there were no plans to amend the provision in the act setting up the Human Rights Commission, which required members of the Commission to be Muslims, which was a clear violation of the Convention and the Constitution of Maldives. What measures had been taken to broaden the diversity of the membership of the Commission? Was the State aware that limiting membership of the Commission made it difficult for the Human Rights Commission in Maldives to move from “B” to “A” status?
Ms. Chung also said that according to many reports, to recruit migrant workers into Maldives, employers were required to submit a quota request to the Maldives’ immigration authorities; however, in the absence of a dedicated mechanism, the quotas granted often failed to reflect actual labour market needs. This gap had contributed to the emergence of a “quota trading” practice, where migrant workers were subcontracted to third-party employers, increasing their vulnerability to exploitation. Was there a plan to correct this "quota trading" that rendered migrant workers vulnerable to exploitation?
Introducing the report, Ahmed Usham, Attorney General of the Republic of Maldives and head of the delegation, said diversity in race and ethnicity in Maldives primarily arose through labour migration. Accordingly, much of the Convention’s practical relevance for Maldives related to ensuring the protection and fair treatment of migrant workers within this specific context. Key legal reforms underway included an overhaul of the Maldives immigration act, and updating the family act, the domestic violence prevention act, and the sexual harassment prevention act, to strengthen safeguards and improve access to justice. A legal aid bill was also in the pipeline. Additionally, Maldives had criminalised hate speech through amendments to the Penal Code.
The delegation said it was specified in the Constitution that members of the Human Rights Commission would be Maldivians, and the Constitution specified that Maldivians were Muslims. This was not something the State was seeking to change. However, there had been significant improvements in how the Commission had been empowered in law and with technical resources. An amendment had been brought to the Commission in 2020 which added safeguards to prevent corruption. The budget of the Commission was gradually increased each year, and it had been significantly increased in 2025.
The delegation said there had been significant improvements to the employment act of Maldives which had significant penalties for labour exploitation, including quota trading. System audits had the full capacity to ensure which staff or employer was requested from certain quotas. Until 2021, the quota for migrant workers was issued on a two-year basis. However, the quota framework had recently been modernised, allowing for better monitoring and oversight. Upon a project completion, workers had several options, including transferring the migrant workers to another employer or repatriating them.
In concluding remarks, Mr. Sibande thanked Maldives for its participation in the dialogue. The delegation had been represented at a very high level; this commitment was appreciated by the Committee.
Mr. Usham, in his concluding remarks, extended sincere appreciation to the Committee for the thoughtful and constructive dialogue. The dialogue was seen as a renewed beginning, encouraging the State to review strategies, close gaps, and ensure the Convention continued to guide the Government’s work.
The delegation of the Republic of Maldives consisted of representatives of the Attorney General’s Office; the Ministry of Homeland, Security and Technology; the Ministry of Higher Education, Labour and Skills Development; the Ministry of Foreign Affairs; the Family Protection Authority; the Ministry of Education; the Labour Relations Authority; the Judicial Academy; the Ministry of Health; the Maldives Police Service; the Maldives Correctional Service; the Maldives Bureau of Statistics; the Ministry of Social and Family Development; the Ministry of Tourism and Environment; the Anti-Trafficking in Persons Office; Maldives Immigration; and the Permanent Mission of Maldives to the United Nations Office at Geneva.
The Committee will issue its concluding observations on the report of Maldives after the conclusion of its one hundred and sixteenth session on 5 December. The programme of work and other documents related to the session can be found here. Summaries of the public meetings of the Committee can be found here, while webcasts of the public meetings can be found here.
The Committee will next meet in public this afternoon, Wednesday, 19 November, at 3 p.m. to consider the combined eighteenth to twentieth periodic reports of Guatemala (CERD/C/GTM/18-20).
Report
The Committee has before it the combined thirteenth to fifteenth periodic report of the Republic of Maldives (CERD/C/MDV/13-15).
Presentation of Report
AHMED USHAM, Attorney General of the Republic of Maldives and head of the delegation, said Maldives had been party to the Convention since 1984, which aligned with the State’s Constitutional guarantees of equality and non-discrimination. Maldives was strongly committed to the international human rights system through its ratification of core conventions and optional protocols, and it had begun the process to issue the article 14 declaration under the Convention.
According to the 2022 Population and Housing Census, foreign residents represented 25.7 per cent of the country’s resident population, and were predominately male (around 80 per cent). As Maldives lacked a legal framework for receiving asylum seekers, refugees or stateless persons, predominantly due to its limited resources, such individuals did not reside in the country. Maldives facilitated third country resettlements, in full compliance with the principle of non-refoulement.
The Maldivian population was largely homogenous, sharing the same language, culture, religion and community values. Diversity in race and ethnicity in Maldives primarily arose through labour migration. Accordingly, much of the Convention’s practical relevance for Maldives related to ensuring the protection and fair treatment of migrant workers within this specific context. The protections guaranteed under the Convention were embedded in the Constitution, which guaranteed all rights and freedoms without discrimination, including on the basis of race or national origin.
Individuals whose rights were infringed had access to both judicial and non-judicial remedies, including through the Human Rights Commission of Maldives, the newly established Office for Civil Rights, and the courts. For these reasons, the Government did not intend to introduce a standalone anti-discrimination act.
Since the submission of the periodic report, several key legislative reforms had been adopted that reinforced equality and strengthened protections. The birth and death registration act mandated the prompt registration of all children without discrimination. Labour protections were significantly enhanced through the enactment of the occupational health and safety act and the industrial relations act. An amendment to the employment act, enacted this year, further strengthened the governance of foreign labour and introduced penalties for discriminatory treatment.
Key legal reforms underway included an overhaul of the Maldives immigration act, and updating the family act, the domestic violence prevention act, and the sexual harassment prevention act, to strengthen safeguards and improve access to justice. A legal aid bill was also in the pipeline.
With migrant workers comprising a significant portion of the population, their rights were consistently prioritised in Maldives’ national laws, policies and enforcement mechanisms. The National Taskforce on Issues Related to Migrant Workers, set up in 2019, coordinated the transformative regularisation programme and implemented sustainable solutions for undocumented and irregular migrant workers.
Significant efforts had been undertaken to address the rights of migrant workers, including an assisted voluntary return mechanism, launching of “operation kurangi” to update biometric records, and continuation of the regularisation programme, allowing workers to regularise their status without employer consent where employers were acting in breach of the law. A Migrant Worker Resource Centre was also launched, providing a centralised point for information, grievance redress, and referral services in multiple languages.
Additionally, Maldives had criminalised hate speech through amendments to the Penal Code. The State recognised the need to further modernise foreign labour management in order to enhance protection and prevent exploitation. Mr. Usham concluded by stating that despite ongoing comprehensive fiscal measures, resource limitations continued to pose the greatest challenge to Maldives in fully implementing recommendations.
Questions by Committee Experts
CHRISPINE GWALAWALA SIBANDE, Committee Expert and Country Rapporteur, said information indicated that the Maldives Bureau of Statistics carried out the Population and Housing Census and Economic Census in September 2022. Available information to the Committee indicated that Maldives had a population of South Indians/Dravidian, Sinhalese, Arabs, Africans, Bangladeshis and Sri Lankans. Were there efforts to have a population census based on different ethnic groups?
Could the delegation provide information on the ethnic composition of the State party’s population, including on ethnic minorities and on non-citizens such as asylum seekers, refugees, stateless persons and migrants? Could updated, disaggregated statistics be provided on the socioeconomic situation of the various groups residing in the State party’s jurisdiction? How did the State party ensure these statistics were disaggregated by sex, age, ethnic or national origin, and migration status?
The Attorney General had informed the Committee this afternoon that the Government did not currently intend to introduce a standalone anti-discrimination act. Could the delegation update the Committee on efforts being made to domesticate the Convention if there were no plans to introduce a standalone anti-discrimination act? How were the provisions of the Convention being incorporated into domestic legislation? Were there plans to adopt comprehensive anti-discrimination legislation? What measures were being taken on article 14 of the Convention to broaden the commitment of upholding the principles of the Convention?
What were the challenges in implementing and adopting the Durban Declaration and Programme of Action? What strategies had the country developed to make sure that the Durban Declaration and Programme of Action was implemented at the national level in Maldives? Could an update be provided on the enactment of a personal data protection bill, bills on freedom of expression and freedom of the press, a bill on the right to strike, a bill on the protection of vulnerable individuals, a mental health bill, a national registration bill, a legal aid bill, and bills amending the disabilities act, the social protection act, and the anti-torture act?
The religion of Maldives was Islam, which was the basis of all the laws of Maldives. The report stated that no law contrary to any tenet of Islam should be enacted in Maldives and non-Muslims could not become citizens of Maldives. The delegation should consider that this bordered on discrimination on the basis of religion and violated the principles of the Convention and other international and regional instruments. What measures was the State taking on reviewing this position in the Constitution of Maldives and other related laws? What measures was the country taking to engage citizens to ensure the Constitution and related laws were amended to accommodate non-Muslims to become citizens of Maldives?
How was civic education and awareness provided on the Convention? Could the delegation update the Committee on reports it was banning certain non-governmental organizations from operating in the country? There were reports that apart from Muslims who freely enjoyed freedom of religion, other religious groups did so in private, fearing authorities. How did the State party ensure everyone could enjoy freedom of religion?
Maldives had stated there were no plans to amend the provision in the act setting up the Human Rights Commission, which required members of the Commission to be Muslims, which was a clear violation of the Convention and the Constitution of Maldives. What measures had been taken to broaden the diversity of the membership of the Commission? Was the State aware that limiting membership of the Commission made it difficult for the Human Rights Commission in Maldives to move from “B” to “A” status? What measures was Maldives taking to provide real special assistance and protection to disadvantaged individuals and groups in Maldives? What measures were being taken to increase funding to the Human Rights Commission and make sure it could operate without interference and withdrawal of resources?
What was Maldives doing to offer safe spaces for civil society organizations, human rights defenders, journalists and individuals to prosper and exercise their rights and freedoms without fear of reprisals? The Committee’s efforts to engage different civil society organizations of Maldives had revealed many were afraid to submit information to the Committee for fear of reprisals. Could the delegation comment on these allegations?
The freedom of peaceful assembly act imposed severe restrictions on the right to assembly, and some civil society organizations had complained that it was an abusive law. The Government had repeatedly promised to amend the law. On 25 July, after Bangladeshi nationals held a peaceful protest in support of student protests in Bangladesh, Maldivian authorities threatened to deport the protestors, citing a visa condition that prohibited migrants from engaging in “political activities”. Could the delegation update the Committee on measures being taken to amend the act according to the principles of the Convention and other human rights treaties?
Maldives did not prohibit female genital mutilation, and reports indicated that around 12 per cent of girls in the country were subject to the harmful practice. What steps were being taken to address and prohibit female genital mutilation?
The Government of Maldives had openly said it wanted to reinstate the death penalty, which would end a de facto moratorium dating back to the 1950s, much to the concern of rights groups. What measures had the State taken to investigate and address issues of perceived corruption and the politicisation of the judiciary? What was being done to abolish the death penalty completely?
Responses by the Delegation
AHMED USHAM, Attorney General of the Republic of Maldives and head of the delegation, said the Constitution of Maldives grounded the legal framework of Islamic principles. Freedom of religion beyond Islam was not recognised under Maldivian law, and the legal system did not accommodate practices that fell outside this religious and cultural framework. The Constitution stipulated that only Muslims could acquire Maldivian citizenship. The State did not intend to change these laws.
The delegation said most foreign residents in Maldives were from Bangladesh (around fifty per cent). Smaller groups included those from Nepal and the Philippines. The majority lived in the capital city, while others lived in the atolls, working in tourism and construction sectors. Maldives did not have asylum seekers or stateless persons residing in the country in a permanent manner as the State did not have the appropriate legal frameworks in place. When faced with this situation, Maldives collaborated with Government initiatives for third party settlements. These had been successfully conducted on a case-by-case basis, ensuring international obligations were met.
Maldives was a dualist country, and the principle of non-discrimination was a cornerstone of the Constitution and bolstered within other laws. The employment act and subsidiary legislation encapsulated protection for foreign workers. The Penal Code was amended in 2021 and now criminalised inciting violence due to racial hatred. The education act prohibited any discrimination in the provision of education. The occupational, health and safety act 2024 empowered employees to hold employers accountable for discriminatory acts. Maldives believed that although it did not have a specific discrimination act, the rights that the Convention sought to protect were successfully protected through these specific legal instruments.
Maldives was working to make the declaration on article 14 of the Convention. Female genital mutilation was not a practice which had occurred in Maldives in recent times. Any act considered as female genital mutilation would be considered as abuse under the Penal Code. Maldives endorsed the Durban Declaration and Programme of Action two decades ago but had not been able to come up with specific plans which formalised its operation. However, specific legislative reforms operated to ensure the competencies within the programme were operational within Maldives, including the Penal Code and the anti-torture act. Training programmes had been rolled out to State officials on these pieces of legislation.
It was specified in the Constitution that members of the Human Rights Commission would be Maldivians, and the Constitution specified that Maldivians were Muslims. This was not something the State was seeking to change. However, there had been significant improvements in how the Commission had been empowered in law and with technical resources. An amendment had been brought to the Commission in 2020 which added safeguards to prevent corruption. The budget of the Commission was gradually increased each year, and it had been significantly increased in 2025.
Maldives had had the freedom of assembly act since 2016. It had had one amendment and the Government was seeking to bring further amendments to the act. The fifth amendment to the Penal Code was a key step taken to ensure there were no reprisals against civil society organizations in Maldives. Regarding the allegation of a non-governmental organization banned from the country, this was an isolated incident. Maldives had engaged constructively with different United Nations organs on this point, and the actions taken were in accordance with the laws in Maldives.
The United Kingdom also restricted freedom of assembly around areas such as airports and Trafalgar square, the delegation said. Switzerland similarly restricted areas around places like the United Nations. Maldives practiced similar restrictions, but the small size of the capital city made this more complicated. There were currently four spaces where the public could gather for protests without a permit, but any other areas required permission. In many cases, Maldives had permitted these events to go ahead in these areas.
The death penalty remained in law in Maldives in limited circumstances and its enforcement required full judicial safeguards. There was an automatic appeal and the law required final approval by the Supreme Court. Doing away with the death penalty required a broader consensus of the people.
Questions by Committee Experts
CHRISPINE GWALAWALA SIBANDE, Committee Expert and Country Rapporteur, said he appreciated the statement by the Attorney General, which stated that Maldives remained committed to the international human rights system, and was party to eight of the nine core conventions and seven optional protocols. This commitment was encouraging. However, some questions remained unanswered, including how Maldives ensured that people who were not Muslim could enjoy their freedom of religion. Could information on this be provided?
What efforts were being made to ratify the Convention on the Protection of Migrant Workers and the Convention on Refugees? The 2022 evidence act compelled journalists to disclose their sources, and was one of the reasons for the State’s recent decline in the World Press Freedom Index by six places. What steps had been taken to investigate threats made to independent media outlets Raajje TV and Channel 13 and their staff? What steps had been taken to ensure the State response to climate change did not marginalise certain groups?
CHINSUNG CHUNG, Committee Expert and Country Co-Rapporteur, said there were reports on the oppression of peaceful assembly and calls for accountability for police misconduct and excessive use of force. For example, in July 2023, 39 Bangladeshi expatriate workers were detained during a protest demanding payment of unpaid wages. Additionally, it was alleged that religious reasons were used for the arrest of migrant workers. Migrant workers’ association and assembly were easily accused as propagation of any religion other than that of Islam, which was a criminal offense punishable by house arrest or two to five years in prison. How did the State respond to these reports?
Did the delegation mean there were no asylum seekers or refugees in Maldives? What was the source of the statistics on asylum seekers and refugees? This week, the Committee had three country reviews. There was a morning session for non-governmental organizations; a huge number of organizations from the other countries had attended but none from Maldives. Could the delegation explain why this was the case? Could more information be provided on the State’s national development plan?
A Committee Expert said there had been reports that the lack of clear procedural guidelines on the 2007 Maldives immigration act left undocumented migrant workers vulnerable to arbitrary action and deportation? What steps were being undertaken to ensure this act was aligned with article 2 of the Convention?
Another Expert commended the high-level delegation of Maldives. Were there judges who were appointed until the age of retirement? Was it a normal situation to remove a judge? In a case of misconduct, who decided a judge had acted incorrectly?
FAITH DIKELEDI PANSY TLAKULA, Committee Expert and Follow-Up Rapporteur, said the follow-up report was meant to be submitted by Maldives in 2012 regarding the implementation of the 2011 concluding observations. Ms. Tlakula acknowledged with disappointment that the report had not been submitted as requested.
A Committee Expert commended the State for the detailed report, which allowed the Committee to be up to date on policies and areas of discrimination in the State party. Had the Government or parliament planned any initiative to reform the law or text establishing the National Human Rights Commission? Could this be done as soon as possible to align this institution with the Paris Principles? How many civil society organizations were working on racial discrimination in the State party? How did they contribute to the dialogue? Were they consulted by the State prior to the dialogue? How many complaints of racial discrimination had been brought to the attention of the national human rights institution and what was the result?
Responses by the Delegation
The delegation said the migrant workers being deported were mainly involved in criminal activity or working without a permit. However, any deportation order could be challenged in the courts. Foreign workers could practice their religion within the spaces they owned and lived in. Maldives had very specific laws which were against harming individuals and the police took serious steps. Regarding the two publications, these threats had occurred in the online space and there were therefore limited actions the police could take. Visa regulations strictly limited the ability of migrant workers to participate in political activities in Maldives. The State lacked the resources to provide safe spaces for migrant workers of opposite political views to protest all around the country.
Maldives was currently not in a position to become a signatory to the Convention on Migrant Workers. However, it assured that the same safeguards provided in the Convention were present in the State’s legal framework. Asylum seekers and refugees in Maldives were not rejected, but instead resettled in third countries. Maldives was in the process to bring amendments to the evidence act, and this had been submitted to Parliament.
Climate change was an area of continuing challenge to Maldives. The climate emergency act mandated the State to develop response plans. The vulnerability of migrant workers in the context of climate change in Maldives was recognised. The disaster management act mandated warnings to be transferred to people in a language they would understand, which would be crucial for non-national communities. A campaign had been launched with the United Nations Development Programme on a platform which provided early warning tools in five languages, designed to be inclusive of vulnerable groups across all islands. The national development plan would fully transform Maldives into a developed nation by 2040. Consultations were underway with island communities to ensure the plan was informed of the ideas and policies and solutions to the problems being faced across the country.
The Judicial Service Commission was appointed to oversee the affairs of all judges in the judiciary. Judges were appointed for a life tenure. Judges were now required to submit annual asset declarations, to be reviewed by the Judicial Service Commission for discrepancies. An online portal had been established where complaints could be submitted to further ensure transparency of the judiciary.
There had been gaps in the past in the fulfilment of Maldives’ obligations under human rights mechanisms, mainly due to a lack of resources. The permanent mechanism for follow-up was established in 2020 and oversaw the national follow-up and implementation of treaty recommendations. It cooperated with many groups, including civil society organizations in submitting the State’s reports and preparing for reviews. Maldives undertook efforts to ensure civil society organizations felt empowered, including through the Office for Civil Rights. The Government also undertook specific grant approvals and submissions from civil society organizations.
Questions by Committee Experts
CHINSUNG CHUNG, Committee Expert and Country Co-Rapporteur, said the Committee appreciated various efforts made by the State party to improve the situation of migrants, including migrant workers. Were there plans to amend section 4 of the employment act to explicitly include national origin as a prohibited ground of discrimination? What was the situation of the National Taskforce on Issues Related to Migrant Workers that was established in 2019?
According to many reports, to recruit migrant workers into Maldives, employers were required to submit a quota request to the Maldives’ immigration authorities; however, in the absence of a dedicated mechanism, the quotas granted often failed to reflect actual labour market needs. This gap had contributed to the emergence of a “quota trading” practice, where migrant workers were subcontracted to third-party employers, increasing their vulnerability to exploitation. Was there a plan to correct this "quota trading" that rendered migrant workers vulnerable to exploitation? What measures were being taken to address this commercialisation of regularisation of certifications and allegations of abuse in the granting of migrant status?
It was reported that migrant workers engaged in labour-intensive manual work often lacked adequate and substantial social protection and were subjected to acts indicative of fraudulent recruitment, confiscation of passports, non-payment of wages, forced labour and debt bondage. Employers continued to withhold the passports of migrant workers for the purpose of safekeeping. What measures had been taken to improve this situation? What was the rationale for postponing the application of the minimum wage to migrant workers? What measures were being taken to ensure the payment of wages by employers? What were the sanctions imposed on employers who did not respect their obligation of timely payment of wages to migrant workers?
The living conditions of migrant workers in Maldives had been described as unsafe, cruel, inhuman and degrading. In November 2022, a fire in a cramped housing unit in Malé claimed the lives of 10 workers. Could an explanation be provided? What measures were being taken to improve the living conditions of migrant workers? In December 2014, Malé faced a water crisis where many migrant workers, particularly undocumented ones, were not provided with sufficient quantities of water in an emergency situation. What measures were being taken to combat discrimination against migrant workers?
The Committee appreciated the cooperative efforts of the Government of Maldives, most notably the Ministry of Health, with the United Nations in Maldives to improve equitable access to health services for migrants. A key milestone was the development of a migration health policy, which had been approved by the Government and officially launched on 30 June 2025. Could further information be provided on the implementation of this policy and how it had helped address systematic barriers and discrimination in health care access?
What was being done to facilitate the lodging of complaints by migrant workers who had been victims of violations of their rights? Could updated statistics be provided on inspections carried out, violations identified, sanctions imposed, and remedies provided? Many migrants faced stigma and discrimination, being portrayed in some local media and social media platforms as carriers of disease or threats to public health. What was being done to address xenophobic discrimination against migrant workers?
According to information received, women migrant workers in Maldives, particularly those engaged in care work within private residences, faced a range of entrenched and overlapping abuses. Could information be provided on the position of women migrant workers in the labour market, the gender pay gap, job segregation, and sexual harassment? What measures did Maldives take to increase awareness about the sexual abuse and harassment prevention act for all employees and employers, and had training in different languages been envisaged? Had a comprehensive care system for strengthening victim assistance been established?
Maldivian employers often preferred to hire workers outside legal channels, leaving these undocumented migrant workers vulnerable to fraudulent recruitment, the confiscation of identity and travel documents, non-payment of wages, and debt bondage. What were the concrete results of the operations launched for the regularisation of undocumented migrant workers, namely “operation kurangi” and “operation hamamagu”? How had these contributed to improve the access of undocumented migrant workers to their basic rights?
According to information received, persons who were deemed to be in violation of the immigration act were held in detention until deportation arrangements were completed. How was it ensured that the detention of migrants was only a last resort, and that those in detention were afforded fundamental legal safeguards? Was it ensured that migrants awaiting deportation were separated from convicted prisoners?
Could information be provided on the legislative and policy framework concerning stateless persons? What measures were in place to prevent statelessness and ensure that all children born in Maldives were registered at birth without discrimination?
According to available information, Maldives was known to be a destination country for human trafficking, including sex trafficking and especially forced labour. Could information be provided on the implementation of the anti-human trafficking act and the national anti-human trafficking action plan? What other measures were being taken to combat trafficking in persons?
Responses by the Delegation
The delegation said section 4 of the employment act prohibited discrimination in all employment on the basis of race, colour and social conditions. There had been two amendments to the act, one of which was introduced in 2024 which recognised foreign labourers could work in Maldives with stipulations. The occupational health and safety act complimented this.
In 2019, a National Task force on Issues Relating to Migrant Workers was established to coordinate the naturalisation process. The taskforce was focused on funding sustainable long-term solutions, including building a better detention centre, and regulating the status of certain migrant workers. “Operation kurangi” was launched in May 2024 to update the biometric report of all migrant workers in Maldives. Undocumented workers who completed their biometric updates would be eligible for Government assistance.
The minimum wage was implemented in 2022 in Maldives and was being reviewed every two years. The new minimum wage would hopefully be implemented in January next year. Employers who delayed payments were fined.
The Ministry of Health ensured healthcare was provided to all without discrimination and upfront payment. Regular sensitised training reinforced the commitment to equality in healthcare. The national migrant health policy aimed to ensure and promote conditions in which migrants could fully recognise their right to health without discrimination. The national migrant health policy 2025 sought to integrate migrants into the country’s health system through improving the public perception of migrants and data collection, among other actions.
The sexual harassment and abuse act and the domestic abuse act were not limited to Maldivians and were applicable to all foreigners. The detention of migrant workers was used as a last resort when it was necessary. During the detention, they were guaranteed access to legal care and medical services, and no one faced any discrimination. Due to legal limitations and the absence of national legislation in this area, Maldives was unable to undertake obligations relating to refugees and asylum seekers and stateless persons. Any cases which arose were considered on a case-by-case basis, in partnership with United Nations mechanisms on the ground.
Maldives had strengthened its national trafficking architecture through a national action plan. Maldives provided shelter services to victims of trafficking as well as psychosocial support and legal aid. From 2020 to 2025, 14 trafficking cases had been investigated and two were at the prosecution stage.
There had been significant improvements to the employment act of Maldives which had significant penalties for labour exploitation, including quota trading. System audits had the full capacity to ensure which staff or employer was requested from certain quotas. Accommodation which met the national standards was being built for migrant workers and would be up and running in the coming years. In the meantime, there were rigorous inspections of migrant accommodation. Soon, the need to take migrants’ passports physically by immigration would not be necessary, which would limit the future confiscation of passports. Migrant Connect had been opened; it was a portal enabling migrant workers to lodge complaints, or request assistance if they were being exploited.
The recently enacted birth and death registration act required all children to be registered in Maldives within seven days of birth. All children regardless of the status of their parents would have access to all basic services within Maldives. The Human Rights Commission of Maldives conducted human rights awareness sessions in schools. Programmes were conducted in collaboration with local councils to foster peace and tolerance in communities.
Questions by Committee Experts
CHRISPINE GWALAWALA SIBANDE, Committee Expert and Country Rapporteur, asked what mechanism had been put in place to allow civil society organizations to access data on trafficking cases?
CHINSUNG CHUNG, Committee Expert and Country Co-Rapporteur, asked for more clarification about rules around the quotas for migrant workers.
A Committee Expert asked whether the severity of crimes carried out by migrant workers negated the State party’s obligations under the Convention? What was the timeframe to leave the territory compared to the timeline bound by law under the immigration act? Did migrant workers have enough time to challenge these orders?
FAITH DIKELEDI PANSY TLAKULA, Committee Expert and Follow-Up Rapporteur, said the Committee appreciated information on the anti-trafficking act and the 2021 amendment. Had the amendment come into effect?
Another Committee Expert said Maldives remained one of the countries that was most exposed to climate change. What was the status of Maldives in fulfilling the Sustainable Development Goals, particularly regarding indigenous peoples and those of African descent?
An Expert asked what measures had been taken to prevent non-refoulment?
Responses by the Delegation
The delegation said Maldives had strengthened its mechanism to ensure civil society organizations had access to data on human trafficking. A platform had been established to ensure these bodies could access this data and contribute to policy development. The Government also organised quarterly engagement forums with civil society and non-governmental organizations.
The prevention of sexual abuse act extended to employers in institutions. The act mandated institutions to establish a committee on the prevention of sexual abuse and harassment, which was considered the first point of call to reporting cases of sexual abuse. Steps following the investigation could include demoting or terminating the perpetrator from the place of employment. Since 2015, a total of 50 cases of sexual harassment had been submitted to the employment tribunal for consideration.
Maldives had low levels of extreme poverty. However, the State acknowledged there were challenges in terms of service provisions, given its broad geographical region. Work was being done to ensure equity across the country.
Maldives aimed to provide psychosocial support to survivors of all forms of abuse. Financial aid was provided for victims of sexual abuse and to all those who requested it, including foreign workers.
Until 2021, the quota for migrant workers was issued on a two-year basis. However, the quota framework had been recently modernised, allowing for better monitoring and oversight. Upon a project completion, workers had several options, including transferring the migrant workers to another employer or repatriating the migrant workers.
Questions by Committee Experts
CHRISPINE GWALAWALA SIBANDE, Committee Expert and Country Rapporteur, said the Committee had information that Maldives had no mechanisms available for reporting cases of racial discrimination. Further, Maldives stated that no cases of racial discrimination had been reported in the country. What steps was the Government taking to ensure the complaints mechanism included an aspect of racial discrimination?
The Committee had also received information that no such data on racial discrimination had been collected such as through a survey. Were there any plans to undertake such a survey? The Committee had received information that a media article had described migrant workers as a source of problem in Maldives, as they took the jobs of local people. What steps were being taken to address issues of incitement which led to cases of racial discrimination? Could the State track cases committed against migrant workers and foreign nationals? Could data of cases before the courts concerning violence committed against foreigners be provided?
How many foreign workers were detained in prisons in Maldives? What was the overall picture, regarding if the country could detect and trace unlawful detention of foreigners and migrant workers? The delegation had stated that Maldives had no plans to ratify the Convention on Migrant Workers. Could local laws be developed to ensure those seeking asylum were aware of a piece of law they could defer to, pertaining to their situation.
The Committee had received reports that authorities rarely investigated and prosecuted cases relating to violence and threats against civil society. The Committee had received information about several people, including a Government critic who disappeared in 2017, and another who was murdered. Could the delegation provide information on measures taken to ensure their families could receive justice? What steps were being taken to ensure such cases did not occur again?
The Government had established a “Commission on the Investigation of Murders and Enforced Disappearances” which had investigated 27 cases. However, the findings were yet to be presented to the families of the victims or the public. What was the State doing to ensure the findings of the Commission were made available to the family members and the public?
Maldives had signed the United Nations Convention on Cyber Crime this year. What steps were being taken to ensure this was domesticated in Maldives? What was the State doing to build confidence in the public on the judiciary? What efforts were being made not to threaten judges and ensure they worked independently? Was Maldives ready to domesticate the United Nations guidelines on the independence of the judiciary?
Responses by the Delegation
The delegation said the fifth amendment to the Penal Code created the offence of inciting violence under racial hatred. In 2024, a sixth amendment to the Penal Code was enacted, specifically to address the impacts of cybercrimes. Associated legislation had been amended to introductive legislative rules pertaining to cybercrimes. These specific instruments operated to protect people from harm or incitement to harm on any basis. The collection of disaggregated data was a challenge across all sectors. Efforts were being made through a strategic action plan to ensure a more cohesive approach.
The Presidential Commission on Deaths and Disappearances was established during the previous administration. The Constitution envisaged that the Commission should terminate with the end of an administration. However, this had not happened, and due to the sensitivity of the work being undertaken, the tenure of the Commission had been extended until May 2024, with the final results being submitted to the President. The Government was currently reviewing the information received from the Commission, and information would be published to the extent possible.
The State had fully engaged with different United Nations organs on the topic of the judiciary. Investigations were pursued by the Anti-Corruption Unit of Maldives and decisions to suspend judges were made in accordance with the Judicial Service Commission. Cybercrime had recently been incorporated into the Penal Code.
The Maldives immigration act stipulated the entry and exit of foreigners, in the spirit of promoting safe, orderly and inclusive migration. Threats to migrants, both online and in person, had been investigated. Cases of xenophobia were treated as special cases and investigated accordingly. As of 2025, there were 19 cases of domestic violence and nine cases of sexual harassment recorded against migrant workers.
Questions by Committee Experts
CHRISPINE GWALAWALA SIBANDE, Committee Expert and Country Rapporteur, said there were reports of a lack of access to justice for marginalised and vulnerable groups. What was the Government doing to ensure everyone had access to justice?
CHINSUNG CHUNG, Committee Expert and Country Co-Rapporteur, said there were reports of an “India Out” campaign online and offline, portraying foreign workers as a threat to jobs and religion, resulting in xenophobia towards foreigners. How did the State party respond to this?
A Committee Expert asked for more information about the removal of judges and how the Attorney General’s influence came into play in this regard.
Another Expert asked for more information regarding when families of those who had disappeared would receive further information?
Responses by the Delegation
The delegation said the Government had received the findings of the Presidential Commission and was in the process of reviewing its recommendations. The information would be published, but in a manner which did not hinder ongoing criminal investigations.
The specific “India Out” campaign was not against Indian nationals but was against the presence of Indian military personnel. It had not been intended to promote hatred against anyone.
Significant efforts had been undertaken to move the Criminal Court to a new building and clear the backlog of cases. The Government had committed the judiciary to have financial autonomy from 2026. The Judicial Academy was implementing a training assessment, which would inform training programmes moving forward.
Questions by Committee Experts
CHINSUNG CHUNG, Committee Expert and Country Co-Rapporteur, said non-Muslim foreigners were only allowed to observe their religion privately. There had been various human rights violations committed in the name of religion, including threats, anti-Semitism and genital mutilation against human rights defenders. How was the State addressing these issues?
There were many reports pointing out the current level of impunity in Maldives, which endangered civil society actors. What measures were being taken to protect human rights defenders and the legal system in place to punish the violation of their rights? United Nations experts were deeply concerned about rising religious fundamentalism and shrinking civil spaces, which undermined women’s participation in democracy. What measures were being taken to address these challenges? Fundamentalist ideology had resulted in the killings and disappearances of human rights defenders who had expressed liberal views regarding women. Could the delegation provide further information on this?
Following her visit to Maldives, the United Nations Special Rapporteur on cultural rights said urgent action must be taken to foster and support cultural activities in Maldives within the school curriculum. Teachers required further training to thoroughly address cultural and historical subjects. What measures were being taken to promote human rights and cultural education in schools and university programmes? The insufficient number of Dhivehi teachers meant teaching in this language could not be mainstreamed. What was being done to preserve this language and culture?
The Committee appreciated that the Government of Maldives was working to foster social cohesion and mutual understanding between migrant and host communities, together with the International Organization for Migration and civil society actors, including through ongoing efforts to educate the public on the importance of migrant health. Could an update on progress in this regard be provided? What measures were being taken to improve discriminatory and sexist stereotypes about migrant workers in the industry, especially women migrants?
According to United Nations experts, approximately 80 per cent of Maldivian historical and archaeological sites, including sites relating to the Buddhist, Hindu and Sufi past, had been destroyed for the construction of resorts and development projects. What measures were being taken to promote knowledge and awareness of the cultural heritage, linguistic identities and history of the various communities in the State party?
Responses by the Delegation
The delegation said the Constitution allowed for freedom of expression and had always been in favour of providing the maximum space for civil society organizations to practice this right. The whistleblower protection act provided important safeguards to individuals and journalists who reported on systemic violations, while being able to maintain their confidentiality. The Government of Maldives did not tolerate hate speech, reprisals, threats or harassment against civil society organizations, and the police was vigilant in investigating these cases. Officials received training on human rights, including police trainings on key human rights concepts.
A law in 2011 instigated Dhivehi as the local language, and priority was given to its preservation. The State had recently enacted a heritage act for aspects of its culture which were in danger of diminishing. The national curriculum framework specifically listed human rights, democracy and justice as one of its central principles, and was the guiding document for the school syllabus. A special subject “civic and citizenship education” had been implemented, to foster a sense of love for the nation. It had been taught in all schools since 2023.
Questions by Committee Experts
CHINSUNG CHUNG, Committee Expert and Country Co-Rapporteur, said the culture of impunity of violations against human rights defenders had not been addressed. The Committee had received reports on the politicisation of civil society; could more information on this be provided? How was the association act of 2022 implemented?
CHRISPINE GWALAWALA SIBANDE, Committee Expert and Country Rapporteur, said the Committee had information that in 2017, 54 lawyers had had their licenses suspended. Could the delegation update the Committee on how this issue was being handled? These lawyers had simply been calling for the independence of the judiciary. There was information that the police had assaulted a journalist who was protesting the media and broadcasting act published this year. The United Nations Human Rights Office had stated that this bill undermined media freedom. What efforts were being made to ensure that journalists operated freely? The Committee had received reports of several incidents of police assaulting journalists who were covering opposition protests. How had these cases been addressed?
A Committee Expert asked if the State party was taking steps to ensure that the Maldives National Human Rights Commission received “A” status? Did the State party plan to adopt a specific, tailored act which would protect human rights defenders?
Responses by the Delegation
The delegation said mechanisms had been introduced which ensured that the Bar Counsel of Maldives was the responsible institution to manage the affairs of lawyers. The media and broadcasting act aimed to create an umbrella under which journalism ethics could be governed and ensure a streamlined process for media registration. The act also aimed to address challenges of mis- and dis-information and ensure an end to the systemic manipulation of content which was breaching media regulatory standards. Under the act, a single Commission had been established. Contrary to information received, there was no provision under the act to fine individual journalists.
The Government was committed to ensuring the Human Rights Commission had the necessary budgetary support to exercise its functions. The Government believed the current legal framework adequately addressed any threats or reprisals faced by human rights defenders in Maldives.
Media personnel in Maldives were given special access by police to cover protests and given special protection and access to security zones. In the protests referred to by the Committee, the media personnel were the protesters and had violated the passes provided to them. These people were not arrested but were escorted out of the special security zone.
Closing Remarks
FAITH DIKELEDI PANSY TLAKULA, Committee Expert and Follow-Up Rapporteur, said there would be recommendations issued to Maldives, which needed to be implemented within one year. The State party was expected to issue a follow-up report on these recommendations. It was appreciated that the State party had been upfront about their limitations due to the lack of a mechanism, which had now been established. The Committee hoped the State party would now be able to respond within the allocated timeframe. Information provided on the follow-up issues during the dialogue was also appreciated.
CHRISPINE GWALAWALA SIBANDE, Committee Expert and Country Rapporteur, thanked Maldives for its participation in the dialogue. The delegation had been represented at a very high level; this commitment was appreciated by the Committee. Mr. Sibande thanked all those who had made the dialogue possible, including his fellow Committee members, the Secretariat and the Maldivian Government.
AHMED USHAM, Attorney General of the Republic of Maldives and head of the delegation, extended sincere appreciation to the Committee for the thoughtful and constructive dialogue. The observations provided valuable guidance as Maldives aimed to ensure equality across its whole society. Maldives aimed to ensure every individual could live in dignity, regardless of their background. The Committee’s recommendations would be integrated into future policies. The dialogue was seen as a renewed beginning, encouraging the State to review strategies, close gaps, and ensure the Convention continued to guide the Government’s work. Mr. Usham thanked all those who had made the dialogue possible.
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