Rapport intérimaire - Rapport No. 412, Novembre 2025

Cas no 3448 (Guinée-Bissau) - Date de la plainte: 11-MAI -23 - Actif

Allegations: The complainant organization alleges violations of freedom of association by the authorities, including the wrongful detention of UNTG-CS members; acts of intimidation; violent interventions by the security forces, including in trade union premises; and government interference in the election of UNTG-CS officials

1. 325. The complaint is contained in a communication dated 11 May 2023 from the National Union of Workers of Guinea-Bissau – Union Centre (UNTG-CS).
2. 326. As there has been no reply from the Government, the Committee has twice been obliged to postpone its examination of the case. At its meeting in June 2025 [see 411th Report, para. 6], the Committee launched an urgent appeal to the Government, indicating that, in accordance with the procedural rules set out in paragraph 17 of its 127th Report, approved by the Governing Body, it could present a report on the substance of the case at its next meeting, even if the requested information or observations had not been received in due time. To date, the Government has not sent any information.
3. 327. Guinea-Bissau has ratified the Freedom of Association and Protection of the Right to Organise Convention, 1948 (No. 87), and the Right to Organise and Collective Bargaining Convention, 1949 (No. 98).

A. Previous examination of the case

1. 328. During its previous examination of the case, in October 2024, the Committee made the following recommendations [see 408th Report, para. 478]:
   • (a) The Committee deeply regrets that the Government has not replied to the allegations, even though it has been asked to do so on several occasions, including through an urgent appeal, and requests it to reply as soon as possible.
   • (b) The Committee requests the Government to ensure that, in future, trade union leaders and members face no consequences for engaging in legitimate trade union activity and to ensure that acts of violence and threats targeting trade unionists are duly investigated. In particular, the Committee requests the Government to provide detailed information on any investigations carried out and/or any measure adopted in relation to the serious allegations of threats and intimidation against Mr Júlio António Mendonça and Mr Yasser Ture, UNTG-CS Secretary-General and Deputy Secretary-General, respectively, in February 2023.
   • (c) The Committee expects that the Government will adopt the necessary measures to afford the leaders elected during the 2022 UNTG-CS congress full freedom to exercise their functions without any interference by the authorities.
   • (d) The Committee requests the Government to provide its observations on the alleged entry by police or military forces into UNTG-CS premises in July 2021 and May 2023 and expresses the hope that it will adopt the necessary measures to prevent a repetition of such acts.
   • (e) The Committee requests the Government to take the necessary steps to return the offices of the UNTG-CS to its legitimate leaders and to provide information on the follow-up given to the legal action brought by them.
   • (f) The Committee expects that the Government will give priority to promoting and defending freedom of association by allowing the development of free and independent trade unionism and maintaining a social climate free of anti-union interference and actions, in accordance with its international commitments. Observing that the Government has requested technical assistance from the Office on questions relating to the operation and representativeness of workers’ organizations, the Committee expresses the firm hope that such assistance will be provided and will assist the Government in implementing the Committee’s conclusions and recommendations.

B. The Committee’s conclusions

1. 329. The Committee deplores that the Government has not supplied the requested observations and information in due time, even though it has been asked to do so several times, including through an urgent appeal made at its meeting in June 2025. In these circumstances, and in accordance with the applicable rules of procedure [see 127th Report, para. 17, approved by the Governing Body at its 184th Session (1971)], the Committee finds itself obliged to present another report on the substance of the case without the benefit of the information which it had hoped to receive from the Government.
2. 330. The Committee reminds the Government that the purpose of the whole procedure established by the International Labour Organization for the examination of allegations of violations of freedom of association of employers and workers is to promote and ensure respect for this freedom in law and in fact [see Compilation of decisions of the Committee on Freedom of Association, sixth edition, 2018, para. 3.] The Committee remains confident that, while this procedure protects governments against unreasonable accusations, they must recognize the importance of formulating, for objective examination, detailed replies concerning allegations brought against them [see First Report of the Committee, 1952, para. 31]. The Committee urges the Government to demonstrate greater cooperation in the future.
3. 331. The Committee recalls that this complaint concerns allegations of violations of freedom of association by the authorities, namely: (i) the wrongful detention of UNTG-CS officials; (ii) threats of beatings and death threats against the Secretary-General of the UNTG-CS, Mr Júlio António Mendonça, and his deputy, Mr Yasser Ture, accompanied by other acts of intimidation, such as the patrolling of the areas around the two officials’ homes at night by armed individuals wearing balaclavas (February 2023); (iii) acts of violence perpetrated in a highly charged atmosphere with the aim of preventing the UNTG-CS from renewing its leadership in 2022, despite a court ruling confirming the validity of the electoral process; (iv) the use of public force in the UNTG-CS premises in July 2021 and May 2023; and (v) other actions aimed at preventing representatives of the trade union centre from carrying out their activities, including participating in the International Labour Conference.
4. 332. Recalling that the rights of workers’ and employers’ organizations can only be exercised in a climate that is free from violence, pressure or threats of any kind against the leaders and members of these organizations, and it is for governments to ensure that this principle is respected [see Compilation, para. 84], the Committee deeply regrets the absence of a reply by the Government on any of the above points, considering that the Government’s silence on the measures taken to ensure the protection of trade union officials and the free exercise of trade union activities would appear to corroborate all the allegations of non-respect for trade union rights in the country. The Committee notes in this regard that, during the discussion that took place in the Committee on the Application of Standards of the International Labour Conference in 2025 on the application of the Minimum Wage-Fixing Machinery Convention, 1928 (No. 26), the Committee regretted that no action had been taken to remedy the situation two years after concerns had been raised about the violent attacks and acts of intimidation against independent trade unions.
5. 333. In these circumstances, the Committee firmly expects that the Government will give priority to promoting and defending freedom of association by allowing the development of free and independent trade unionism and maintaining a social climate free of anti-union interference and actions, in accordance with its international commitments. Recalling that the Government has requested technical assistance from the Office on questions relating to the representativeness and operation of workers’ organizations, the Committee once again expresses the firm hope that such assistance will be provided and will assist the Government in implementing the Committee’s conclusions and recommendations. The Committee requests the Government to keep it informed in this matter.
6. 334. In the light of the foregoing, the Committee finds itself once again obliged to refer the Government to its conclusions from its last examination of the case [see 408th Report, paras 454–478] and to recall all of its previous recommendations.

The Committee’s recommendations

1. 335. In the light of its foregoing interim conclusions, the Committee invites the Governing Body to approve the following recommendations:
   • (a) The Committee deplores that the Government has not replied to the allegations, even though it has been asked to do so on several occasions, including through an urgent appeal, and requests it to reply as soon as possible.
   • (b) The Committee requests the Government once again to ensure that, in the future, trade union officials and members face no consequences for engaging in legitimate trade union activity and to ensure that acts of violence and threats targeting trade unionists are duly investigated. In particular, the Committee requests the Government to provide detailed information on any investigations carried out and/or any measure adopted in relation to the serious allegations of threats and intimidation against Mr Júlio António Mendonça and Mr Yasser Ture, the National Union of Workers of Guinea-Bissau – Union Centre (UNTG-CS) Secretary-General and Deputy Secretary-General, respectively, in February 2023.
   • (c) The Committee firmly expects that the Government will adopt the necessary measures to afford the officials elected during the 2022 UNTG-CS congress full freedom to exercise their functions without any interference by the authorities.
   • (d) The Committee once again requests the Government to provide its observations on the alleged use of public force in the UNTG-CS premises in July 2021 and May 2023 and expresses the hope that it will adopt the necessary measures to prevent a repetition of such acts.
   • (e) The Committee once again requests the Government to take the necessary steps to return the offices of the UNTG-CS to its legitimate officials and to provide information on the follow-up given to the legal action brought by them.
   • (f) The Committee firmly expects that the Government will give priority to promoting and defending freedom of association by allowing the development of free and independent trade unionism and maintaining a social climate free of anti-union interference and actions, in accordance with its international commitments. Recalling that the Government has requested technical assistance from the Office on questions relating to the operation and representativeness of workers’ organizations, the Committee once again expresses the firm hope that such assistance will be provided and will assist the Government in implementing the Committee’s conclusions and recommendations. The Committee requests the Government to keep it informed in this matter.