AS TO THE ADMISSIBILITY OF

                      Application No. 21524/93

                      by R.A. and L.A.

                      against Sweden

      The European Commission of Human Rights sitting in private on

9 July 1993, the following members being present:

           MM.   C.A. NØRGAARD, President

                 S. TRECHSEL

                 F. ERMACORA

                 A.S. GÖZÜBÜYÜK

                 A. WEITZEL

                 J.-C. SOYER

                 H. DANELIUS

           Mrs.  G.H. THUNE

           Sir   Basil HALL

           Mr.   F. MARTINEZ

           Mrs.  J. LIDDY

           MM.   J.-C. GEUS

                 M.P. PELLONPÄÄ

                 B. MARXER

                 G.B. REFFI

                 M.A. NOWICKI

                 I. CABRAL BARRETO

                 B. CONFORTI

           Mr.   H.C. KRÜGER, Secretary to the Commission

      Having regard to Article 25 of the Convention for the Protection

of Human Rights and Fundamental Freedoms;

      Having regard to the application introduced on 15 December 1992

by R.A. and L.A. against Sweden and registered on 12 March 1993 under

file No. 21524/93;

      Having regard to the report provided for in Rule 47 of the Rules

of Procedure of the Commission;

      Having regard to the observations submitted by the respondent

Government on 4 June 1993 and the applicants' observations in reply

submitted on 25 June 1993;

      Having deliberated;

      Decides as follows:

THE FACTS

      The first applicant is a Turkish citizen, born in 1953. The

second applicant, his wife, is also a Turkish citizen, born in 1964.

Since 1990 they are staying in Sweden. They are represented by

Mr. O. Larsson, a lawyer practising at Värnamo, Sweden.

      The facts as presented by the applicants when heard by the

Swedish police are as follows.

      Both applicants are of Kurdish origin.

      The first applicant lived at Mardin until he was seven years old,

when the family moved to Izmir. He finished his schooling at Izmir and

then studied to become a teacher and an engineer. He first married in

1982 and has a daughter born in 1983, who is in her mother's care. He

re-married the second applicant in 1986 or 1987, and they have a

daughter, born in 1988. The second applicant has a son, born in 1984,

from a previous marriage. These two children are with the applicants

in Sweden.

      The first applicant performed his military service in 1973-75,

first in Ankara and then in Cyprus. Subsequently he became a member of

the Kurdish Communist Party, the PKK, and has as a teacher informed

other Kurds about the Turkish oppression. In 1986 the authorities

dismissed him as a teacher. He continued however to do voluntary work

in the Kurdish villages and earned his living by working as an

electrician.

      In the beginning of 1989 the first applicant and 11 other Kurds

made an armed attack on a gendarmerie station in the mountains at a

place called Siirt. Their weapons were M-1-guns (a sort of machine-

guns) and Smith & Wesson pistols. The attack was carried out because

the gendarmes had shot at villages in the mountains. It started when

the applicant and the other Kurds threw hand-grenades into the

building. The result was that thirteen gendarmes were killed and the

rest were seriously injured. The gendarmes never had any chance of

opening fire. When the first applicant entered the building by a

window, he hurt his leg seriously. Kurdish doctors sutured his leg, and

he has now two long scars on his leg. In subsequent submissions to the

Swedish authorities the first applicant has pointed out that he only

participated in the initial stage of the attack because of his

injuries.

      The first applicant has also participated in several minor

attacks. On two occasions he also smuggled weapons from Syria into

Turkey. He does not know exactly what kind of weapons he smuggled but

believes they were hand-grenades and other weapons as well as "first-

aid".

      In the beginning of 1989 the first applicant and seven other

Kurds were instructed to attack the office of Turkish Airlines in Urfa.

They poured out petrol and set fire to the airline office which burned

down entirely. No persons were in the airline office on that occasion.

The first applicant subsequently stated to the Swedish authorities that

they knew that no person would be hurt by the attack.

      In February 1989 the second applicant was ill-treated in her home

by members of the civilian military security militia who wanted to get

hold of the first applicant. However, he was not at home and the second

applicant was hit in her face and on her body.

      The first applicant has been arrested twice: in April 1989 he was

questioned about the armed attack on the gendarmerie station, but

released after 24 hours as there was nothing to prove his participation

in the attack; shortly thereafter he was again questioned for a short

period of time about the whereabouts of a certain person. He has not

otherwise been arrested or detained. However, he has been sentenced in

his absence to six years and three months' imprisonment because the

authorities found weapons in his flat after he had left Turkey.

According to information he has received he is sought by the Turkish

authorities.

      The first applicant considers that, if he returns to Turkey, he

risks being sentenced to death and executed.

      The second applicant was born in Beirut in Lebanon and lived

there until 1985 when she moved to Mardin in Turkey. Her parents are

Kurds. She has been a member of the PKK since 1985 but has not held any

leading position. She has helped the organisation with minor things

(economic help, care of sick PKK members, distribution of pamphlets).

She has not been sentenced for any political offence. She considers

that, if she returned to Turkey, she would also - like her husband -

be sentenced to death. In subsequent submissions to the Swedish

authorities the second applicant has modified her statement by claiming

to have held a comparatively high position within the local PKK

organisation.

      With the help of relatives or friends, who bribed the officials,

the applicants managed to obtain regular Turkish passports and they

left Turkey on 27 December 1989 by bus and went through Bulgaria to

Yugoslavia. There they met some Iranians who advised them to go to

Sweden. They therefore flew to Warsaw and went by train to Swinoujscie

where they took the boat to Sweden.

      In Sweden they requested, relying on the facts mentioned above,

political asylum. They were heard by the police in January and February

1990. In support of their claim that the first applicant was sought by

the authorities they submitted a document dated 2 March 1990 in which

the District Court at Bornova requested the local public prosecutor to

determine the first applicant's address and to bring him to the court

hearing which was to take place on 6 April 1990 at 9:30 hours.

      On 5 April 1991 the National Immigration Board (Statens

invandrarverk) decided not to take any decision of its own on the

request for asylum but to refer the matter to the Government. On 3 May

1991 the Board recommended that the applicants and their children

should not be allowed to remain in Sweden. The Board also indicated

that the first applicant's activities in Turkey were such as to give

rise to the question whether they should not be refused asylum on the

basis of Chapter 3, Section 4 second paragraph No. 1 of the Aliens Act

(utlänningslagen 1989:529), which deals with cases where there are

special reasons not to grant asylum because of the alien's previous

activities or in the interest of national security.

      On 22 October 1992 the Government decided not to grant the

request for asylum and ordered that the applicants and their children

should be expelled and prohibited from returning to Sweden before

1 November 1994 without permission by the National Immigration Board.

From the decision it appears that the Security Police had submitted its

comments on 7 March 1991 and 12 June 1992. The Government stated that

the applicants and their children were not to be regarded as refugees

or as so-called de facto refugees. However, according to the 1991

Ordinance on Residence Permits in Certain Cases (förordning 1991:1999

om uppehållstilstånd i vissa utlänningsärenden) they could

nevertheless, in view of the time they had spent in Sweden after

submitting their request, be granted permits to stay unless there were

special reasons against such a decision. The Government then concluded:

      "The Government considers, against the background inter alia of

      the information provided by the Security Police, that there are

      special reasons not to grant (the applicants) and their children

      residence permits despite the fact that they have stayed in

      Sweden for a long time.

      (The applicants) and their children shall therefore be expelled

      in accordance with Chapter 4, Section 1 first paragraph No. 2 of

      the Aliens Act and be prohibited from returning to Sweden in

      accordance with Chapter 4, Section 14 of the Act".

Relevant domestic law

      Under Chapter 3, Section 1, an alien may be granted asylum

because he is a refugee (no. 1) or, without being a refugee, if he

wishes not to return to his home country because of the political

situation there and provided he can put forward weighty reasons in

support of his wish (no. 3).

      The term "refugee" refers to an alien who is staying outside the

country of which he is a citizen because he feels a well-founded fear

of being persecuted in that country, having regard to his race,

nationality, belonging to a special group in society or his religious

or political convictions, and who cannot or does not wish to avail

himself of his home country's protection (Chapter 3, Section 2).

      An alien as referred to in Chapter 3, Section 1 is entitled to

asylum. Asylum may, however, be refused in certain circumstances, for

instance where there are special reasons for not granting asylum in

view of what is known about the alien's previous activities or in the

interest of national security (Chapter 3, Section 4, second paragraph

No. 1).

      A refusal of entry issued by the National Immigration Board may

be combined with a prohibition on return for a specific period of time

(Chapter 4, Section 14).

      The National Immigration Board may, for special reasons, refer

a request for asylum to the Government together with its opinion in the

matter (Chapter 7, Section 11).

      An alien who has been refused entry or who is to be expelled may

never be conveyed to a country where there is firm reason to believe

that he would be in danger of being subjected to capital or corporal

punishment or torture, nor to a country where he is not protected from

being sent to a country where he would be in such danger (Chapter 8,

Section 1).

      When a refusal-of-entry or expulsion order is put into effect,

the alien may not be sent to a country where he would risk being

persecuted, nor to a country where he would not be protected from being

sent to a country where he would risk being persecuted (Chapter 8,

Section 2, subsection 1). An alien may, however, be sent to a country

as referred to in subsection 1 if he cannot be sent to any other

country and if he has shown, by committing a particular offence, that

public order and safety would be seriously endangered by his being

allowed to remain in Sweden. This does not apply if the persecution

threatening him in the other country implies danger to his life or is

otherwise of a particularly grave nature. Similarly, the alien may be

sent to a country referred to in subsection 1 if he has engaged in

activities endangering the national security of Sweden and if there is

reason to suppose that he would continue to engage in such activities

in Sweden and he cannot be sent to any other country (subsection 2).

      If the enforcement is not subject to any obstacles under, inter

alia, Chapter 8, Sections 1 and 2, an alien who has been refused entry

or who is to be expelled is to be sent to his country of origin or, if

possible, to the country from which he came to Sweden. If the decision

cannot be put into effect in the manner indicated in subsection 1 or

there are other special grounds for doing so, the alien may be sent to

some other country instead (Chapter 8, Section 5).

      Under the 1991 Ordinance on Residence Permits in Certain Cases

an alien who has been staying in Sweden for more than eighteen months

on 1 January 1992 may be granted a residence permit unless there are

special reasons for not granting such a permit.

COMPLAINTS

      The applicants complain of violations of

(a)   Article 3 of the Convention in that they would upon their return

      to Turkey be subjected to treatment contrary to that Article;

(b)   Article 6 of the Convention in that their request for asylum has

      not been decided within a reasonable time; and

(c)   Article 13 of the Convention in that there is no appeal against

      the Government's decision.

PROCEEDINGS BEFORE THE COMMISSION

      The application was introduced on 15 December 1992 and registered

on 12 March 1993.

      On 3 May 1993 the Commission decided to communicate the

application as regards the applicants' complaint that their expulsion

would violate Article 3 of the Convention. On the same day the

Commission also decided to issue an indication to the Swedish

Government under Rule 36 of the Commission's Rules of Procedure that

it was desirable in the interest of the parties and the proper conduct

of the proceedings not to return the applicants to Turkey until the

Commission had had an opportunity to examine the application.

      The observations were submitted by the respondent Government on

4 June 1993. The applicants' observations in reply were submitted on

25 June 1993.

THE LAW

1.    The applicants complain of a violation of Article 3 (Art. 3) of

the Convention, which provides as follows:

      "No one shall be subjected to torture or to inhuman or degrading

      treatment or punishment."

      The applicants have stated that they have both been members of

the PKK and that for that reason they run special risks of ill-

treatment or even execution if they return to Turkey. The first

applicant has also stated that he has been actively involved in acts

of violence in Turkey resulting in loss of human lives and destruction

of property.

      The Commission recalls that the Contracting States have the right

to control the entry, residence and expulsion of aliens and that

the right to political asylum is not protected in either the Convention

or its Protocols (Eur. Court H.R., Vilvarajah and Others judgment of

30 October 1991, Series A no. 215, p. 34, para. 102).

      However, expulsion by a Contracting State of an asylum-seeker may

give rise to an issue under Article 3 (Art. 3) of the Convention, and

hence engage the responsibility of that State under the Convention,

where substantial grounds have been shown for believing that the person

concerned would face a real risk of being subjected to torture or to

inhuman or degrading treatment or punishment in the country to which

he is to be expelled (ibid., para. 103). A mere possibility of ill-

treatment is not in itself sufficient (ibid., para. 111).

      In the present case, the first applicant has stated that he is

wanted by the Turkish authorities and has referred to a document dated

2 March 1990 according to which a public prosecutor was requested by

the local Turkish District Court to establish the first applicant's

address and to bring him to a court hearing on 6 April 1990 at 9:30

hours. The first applicant has also referred to the fact that he has

been sentenced in absentia to six years and three months' imprisonment.

      The Government submit that the applicants' complaint under

Article 3 (Art. 3) is manifestly ill-founded as there are no

substantial grounds for believing that the applicants would face a real

risk of treatment contrary to this Article upon their return.

      They stress that the conditions to be met for allowing the

enforcement of an expulsion decision are the same under the Aliens Act

as under Article 3 (Art. 3) of the Convention and that the Government

consider the possibility of enforcement already when the expulsion

decision is taken, although in the instant case no specific conclusion

on this point was mentioned in the Government's decision. Accordingly,

the Government have already carefully considered the problems relevant

under Article 3 (Art. 3) of the Convention. They have found that the

general situation in Turkey is not, despite the specific criticisms

directed against the police in respect of its treatment of persons held

in custody (see the report presented by the Committee for the

Prevention of Torture and Inhuman and Degrading Treatment - CPT/Inf

(93)1) and the problems in the Kurdish areas of the country, such as

to create a general obstacle against the enforcement of expulsions to

Turkey, be it of persons of Kurdish origin or not. In addition, they

stress the fact that Turkish citizens of Kurdish origin reside in many

parts of Turkey and that they also hold prominent positions in the

Turkish society. In view hereof, the Government find that the risk of

treatment contrary to Article 3 (Art. 3) can only be assessed in the

light of the particular circumstances of each case.

      As to the present case, the Government state that they based

their conclusion that the applicants were not political refugees on the

information provided by the applicants in the domestic proceedings.

Nevertheless, the Government have serious doubts as regards the

veracity of the first applicant's allegations, in particular as regards

his participation in the armed attacks and in the weapon smuggling from

Syria. The Government point out that the document dated 2 March 1990,

the authenticity of which they have not examined, has not been issued

by one of the special anti-terrorist courts usually in charge of

investigations of this kind of crime, but by an ordinary civil court.

In addition, the document does not indicate whether the first applicant

is summoned as a witness or as an accused. The Government find that

there is no other indication that he is wanted: after having been

interrogated by the police after the armed attack on the gendarmerie

station the applicant was released as there was nothing to link him to

the event; he has not submitted any evidence to the fact that he has

been sentenced in absentia for illegal possession of firearms; the

family could leave Turkey holding valid passports, something which

appears impossible if the first applicant had been wanted for the

crimes he alleges to have committed.

      As to the evaluation of the risks incurred, the Government stress

that it must in the first place be for the domestic authorities to

evaluate the evidence presented since they are better equipped to do

so. They also point out, relying on the Handbook on Procedures and

Criteria for determining Refugee Status published by the United Nations

High Commissioner for Refugees, that the burden of proof must be on the

refugee in respect of all questions where there is contradictory or

deficient information.

      The Government further observe that the information provided by

the first applicant implies that he has taken part in very serious

crimes in a member State of the Council of Europe, and that, to the

extent that this information is true, the correct thing to do would be

to inform the Turkish authorities so that they may request his

extradition. In any case, this fact should not constitute a reason for

granting him or his family residence permits in Sweden as political

refugees.

      Finally, the Government observe that the organisation PKK, of

which the applicant claims to be a member, is well-known for having

carried out a number of terrorist acts, both in Turkey and in other

parts of Europe. In Sweden, two killings have been proven to have been

ordered and carried out by members of the organisation. The Government

submit that there are strong national security reasons not to grant PKK

members residence permits in Sweden.

      As regards the second applicant the Government find that the risk

of ill-treatment is even less substantiated than in the first

applicant's case.

      The applicants have replied that they do not wish to have the

right to reside in Sweden but only the right not to be expelled to

Turkey. However, as a result of the refusal to grant the applicants

political asylum it is true that they can only go to Turkey.

      The applicants raise serious objections as to the manner in which

the Swedish Government have dealt with their case. The first applicant

stresses that he has already from the beginning given the Swedish

authorities a complete version of his activities for the PKK in Turkey

and that he has relied, inter alia, on the document dated 2 March 1990

from the District Court of Bornova and his conviction in absentia.

During the three years which their case has been pending in Sweden the

veracity of the information submitted has not been questioned. This is

evident already from the Government's decision refusing political

asylum, as this decision does not mention any doubts in this respect.

In this context the applicants draw the Commission's attention to the

Handbook published by the United Nations High Commissioner for Refugees

and point out that the relevant provision does not only state that the

burden of proof rests on the applicant, as maintained by the

Government, but adds that "the duty to ascertain and evaluate all the

relevant facts is shared between the applicant and the examiner" and

that "[i]ndeed, in some cases, it may be for the examiner to use all

the means at his disposal to produce the necessary evidence in support

of the application". The applicants claim that they have met their

obligations as far as the production of evidence is concerned.

Accordingly, they do not consider that their application to the

Commission requires a new assessment by the Commission of the evidence

produced. If the Government have badly motivated their decision this

shall not be held against the applicants.

      The applicants state that they are prevented by the Swedish

secrecy rules from commenting on their membership in the PKK and on the

Swedish security police's observations on this point. They state,

however, that they left the organisation when they fled from Turkey and

that they have had no further contacts with it.

      The applicants observe that the reason why they could leave

Turkey with valid passports was the help they received from Kurds

holding important posts within the administration. The applicants

stress that the Government have not questioned this information in the

expulsion decision and that, accordingly, the present objection looks

like an attempt to create, retrospectively, a justification for the

decision.

      The applicants finally submit that it is a well-known fact that

prisoners are regularly tortured and maltreated in Turkish prisons. It

must be considered established that the first applicant has been

sentenced, in absentia, to a six year prison sentence. There can,

accordingly, be no doubt that at least he will be arrested upon his

return and sent to a Turkish prison and, thus, exposed to a real risk

of treatment contrary to Article 3 (Art. 3). The applicants stress that

they can no longer enter Turkey discretely as their passports have

expired. They submit that what the Commission must examine is whether

or not the conditions of imprisonment in Turkey are such that the

expulsion of the applicants to serve prison sentences there violates

Article 3 (Art. 3) of the Convention.

      The Commission notes that, if the first applicant's own statement

about the activities in which he has been involved in Turkey is true,

it would be understandable if the Turkish authorities were interested

in bringing him to justice on charges of offences against Turkish law.

This cannot in itself raise any issue under Article 3 (Art. 3) of the

Convention.

      The question under Article 3 (Art. 3) is limited to whether or

not there is a sufficient risk that the first applicant will be

subjected in Turkey to torture or to treatment which is inhuman or

degrading. The Commission notes in this respect that he has not

submitted any material capable of substantiating his allegations that

he has participated in the violent and illegal activities which he has

described or that he has been convicted in absentia. Nor has he

presented any material to the effect that he would be wanted by the

Turkish authorities for some other reason of relevance for his present

complaint under Article 3 (Art. 3). In these circumstances the

Commission does not find that substantial grounds have been shown for

believing that the first applicant faces a real risk of being subjected

to treatment contrary to Article 3 (Art. 3).

      As regards the second applicant, the Commission notes that, while

she states that she has been a member of the PKK, it does not appear

that she has performed any important activities on behalf of the

organisation. In her case, there is no reasonable ground for believing

that the Turkish authorities would have any particular interest in her

person. No risk of treatment contrary to Article 3 (Art. 3) can

therefore be considered to have been substantiated in her case.

      It follows that this part of the application is manifestly ill-

founded within the meaning of Article 27 para. 2 (Art. 27-2) of the

Convention.

2.    The applicants have further complained that their request for

asylum was not decided within a reasonable time, contrary to Article

6 (Art. 6) of the Convention, which provides that, in the determination

of his civil rights and obligations or of a criminal charge against

him, everyone shall be entitled to a hearing before a court within a

reasonable time.

      The Commission observes, however, that according to its case-law

(No. 8118/77, Dec. 19.3.81, D.R. 25 p. 105) the determination of a

request for asylum or for a residence permit does not concern the

determination of a civil right or of a criminal charge. The applicants

complaint is therefore in this regard incompatible with the provisions

of the Convention, within the meaning of Article 27 para. 2 (Art. 27-2)

of the Convention.

3.    Finally, the applicants complain of a violation of Article 13

(Art. 13) of  the Convention in that they did not have a legal remedy

against the Government's decision to reject their request for asylum.

Article 13 (Art. 13) provides that everyone whose Convention rights are

violated shall have an effective remedy before a national authority.

      The Commission notes that in the present case the National

Immigration Board refrained from taking a decision of its own on the

applicants' requests for asylum and decided to refer the matter to the

highest authority, which in this case was the Government. Where a

violation of the Convention is alleged to have been committed by the

highest court or authority, the application of Article 13 (Art. 13) is

subject to an implied limitation since that Article cannot be

considered to require that a special body should be instituted for the

purpose of examining complaints against decisions by the highest courts

or authorities (Nos. 8603/79, 8722/79, 8723/79 and 8729/79, Dec.

18.12.80, D.R. 22 p. 147; Cruz Varas and Others v. Sweden, Comm. Report

7.6.90, Appendix II p. 42).

      It follows that the complaint relating to Article 13 (Art. 13)

is manifestly ill-founded within the meaning of Article 27 para. 2

(Art. 27-2) of the Convention.

      For these reasons, the Commission, by a majority,

      DECLARES THE APPLICATION INADMISSIBLE.

Secretary to the Commission            President of the Commission

       (H.C. KRÜGER)                         (C.A. NØRGAARD)