’WPC5 ʆ'Öʧ2‰•ŁC˜g9Ą )ﲄO„xm|ߤqbńØW·¢šć 8ZƒÜk÷³ŸĢ—īZW°éøBEšb{h;`°Æ2ēħ—ĢŹč’ˆ°« żkķp0čā*|“gMMĄRµ‰lk²‚XėĪį2«ęeT݆ŗē' ēy/Ē;9ĄDåŁóœ’&_ĶżØYä2S.óF  :Ė“ō+R’=AŪ _ļtTiŌ×^1ŹXč§Œ WĖeۜŠ;&0Żƒš<¼\A’?*|R4*¶k“ščʌ)łfO©nM6ØļĀKüŗsgį•QĆ >Dų^ øŃuŹØ,śAÉN6Ų7.„Cœ vŚ=m„Āž9a­“”ī_ÕPŌØ»k“„ƒnI€āū4…} øĘ^ZclŖ‘ .,[‰„ĘŒ×ecĻw™$Šx|‹qJSņl"2NŠnpÉ1j^‚Ü Ž ¹ĖĮ€tŗ"¼Š7…ģ^Ÿ±£Qśōv•CĮŊŹ·$Ą»-ćß[ÓīPŗ#©bĻüįš|ƒ0Ž­@iŌI-łC ̌Ć\WųO/ćÄUżt½Oī„F…€×z2õā mkźĒEn²~M°pߞbć~,k #ĮšUN[ %© 0:Æ^ éwõ4ł  m˜HP LaserJet 6P/6MP - Standard,ä,,,,,ä0(ÖĆ9 Z‹6Times New Roman RegularX(ūœ$””ŌUKUS.,Ō°˜ō* Äpģ* Docume͟3|x ’U‹’ĄĄĄŻ ƒūœ!ŻŌUKUS.,ŌŻ  ŻŌ_Ōņ ņCOMMITTEE€ON€THE€ELIMINATION€OF€RACIAL€DISCRIMINATIONŠ ° ŠĢņņŌ_ŌHabassiŌ_Ō€v.€DenmarkóóŠ ą ŠĢCommunication€No€10/1997Š pĄ ŠĢ17€March€1999Š P   ŠĢŌ_ŌCERDŌ_Ō/C/54/D/10/1997Š 0 € ŠĢĢVIEWSó óŠ P  ŠĢĢņņņņSubmitted€byóó:€Ziad€Ben€Ahmed€Habassi€[represented€by€counsel]€Š Š  ŠĢņņAlleged€victimóó:€The€author€Š ° ŠĢņņState€party€concernedóó:€Denmark€Š ą ŠĢņņDate€of€communicationóó:€21€March€1997€(initial€submission)€óóŠ pĄ ŠĢĢņņÓ  ÓThe€Committee€on€the€Elimination€of€Racial€Discriminationóó,€established€under€article€8€of€theŠ @ ŠInternational€Convention€on€the€Elimination€of€All€Forms€of€Racial€Discrimination,€Š 0€ ŠĢņņMeeting€onóó€17€March€1999,€Š ` ŠĢņņHaving€concluded€its€considerationóó€of€communication€No.€10/1997,€submitted€to€the€CommitteeŠ š@ Šunder€article€14€of€the€International€Convention€on€the€Elimination€of€All€Forms€of€RacialŠ ą0 ŠDiscrimination,€Š Š  ŠĢņņHaving€taken€into€considerationóó€all€written€information€made€available€to€it€by€the€author€and€theŠ °"  ŠState€party,€Š  #š! ŠĢņņBearing€in€mindóó€rule€95€of€its€rules€of€procedure€requiring€it€to€formulate€its€opinion€on€theŠ €%Š # Šcommunication€before€it,Š p&Ą!$ ŠĢņņAdoptsóó€the€following:Š P( #& ŠĢĢņ ņņņÓ  ÓOPINIONóóó óŠ  +p&) ŠÓiÓĢĢ1.€The€author€of€the€communication€is€Ziad€Ben€Ahmed€Habassi,€a€Tunisian€citizen€born€in€1972Š š-@), Šcurrently€residing€in€rhus,€Denmark.€He€claims€to€be€a€victim€of€violation€by€Denmark€of€articleŠ ° Š2,€paragraph€1€(d),€and€article€6€of€the€International€Convention€on€the€Elimination€of€All€Forms€ofŠ  š ŠRacial€Discrimination.€He€is€represented€by€counsel.Š ą ŠĢņņThe€facts€as€presented€by€the€authoróó€Š pĄ ŠĢĢ2.1€On€17€May€1996€the€author€visited€the€shop€AScandinavian€Car€Styling@€to€purchase€an€alarmŠ @  Šset€for€his€car.€When€he€inquired€about€procedures€for€obtaining€a€loan€he€was€informed€thatŠ 0 € ŠAScandinavian€Car€Styling@€cooperated€with€Sparbank€Vest,€a€local€bank,€and€was€given€a€loanŠ  p  Šapplication€form€which€he€completed€and€returned€immediately€to€the€shop.€The€application€formŠ `  Šincluded,€inter€alia,€a€standard€provision€according€to€which€the€person€applying€for€the€loanŠ P  Šdeclared€himself€or€herself€to€be€a€Danish€citizen.€The€author,€who€had€a€permanent€residence€permitŠ š@  Šin€Denmark€and€was€married€to€a€Danish€citizen,€signed€the€form€in€spite€of€this€provision.€Š ą0  ŠĢ2.2€Subsequently,€Sparbank€Vest€informed€the€author€that€it€would€approve€the€loan€only€if€he€couldŠ Ą Šproduce€a€Danish€passport€or€if€his€wife€was€indicated€as€applicant.€The€author€was€also€informedŠ ° Šthat€it€was€the€general€policy€of€the€bank€not€to€approve€loans€to€nonnDanish€citizens.€Š  š ŠĢ2.3€The€author€contacted€the€Documentary€and€Advisory€Center€for€Racial€Discrimination€(DRC)Š €Š Šin€Copenhagen,€an€independent€institution€which€had€been€in€contact€with€Sparbank€Vest€onŠ pĄ Šprevious€occasions€about€the€bank's€loan€policy€visnnvis€foreigners.€In€a€letter€dated€10€JanuaryŠ `° Š1996€the€DRC€had€requested€Sparbank€Vest€to€indicate€the€reasons€for€a€loan€policy€requiringŠ P  Šapplicants€to€declare€that€they€were€Danish€citizens.€Ō_ŌSparbankŌ_Ō€Vest€had€informed€the€DRC,€by€letterŠ @ Šof€3€March€1996,€that€the€requirement€of€citizenship€mentioned€in€the€application€form€was€to€beŠ 0€ Šunderstood€merely€as€a€requirement€of€permanent€residence€in€Denmark.€Later,€the€Ō_ŌDRCŌ_Ō€requestedŠ  p Šinformation€from€the€bank€about€the€number€of€foreigners€who€had€actually€obtained€loans.€On€9Š ` ŠApril€1996€Ō_ŌSparbankŌ_Ō€Vest€informed€the€DRC€that€the€bank€did€not€register€whether€a€customer€wasŠ P Ša€Danish€citizen€or€not€and€therefore€it€was€not€in€a€position€to€provide€the€information€requested.Š š@ ŠIt€also€said€that€in€cases€of€foreign€applicants€the€bank€made€an€evaluation€taking€into€accountŠ ą0 Šwhether€the€connection€to€Denmark€had€a€temporary€character.€In€the€bank's€experience,€only€by€aŠ Š  Špermanent€and€stable€connection€to€the€country€was€it€possible€to€provide€the€necessary€service€andŠ Ą! Šensure€stable€communication€with€the€customer.€Š °"  ŠĢ2.4€On€23€May€1996€the€DRC€reported€the€incident€concerning€the€author€to€the€police€departmentŠ $ą" Šin€Skive€on€behalf€of€the€author,€alleging€that€the€bank€had€violated€the€Danish€Act€on€theŠ €%Š # Šprohibition€of€differential€treatment€on€the€basis€of€race.€The€DRC€enclosed€copies€of€its€previousŠ p&Ą!$ Šcorrespondence€with€Sparbank€Vest.€By€letter€dated€12€August€1996€the€police€informed€the€DRCŠ `'°"% Šthat€the€investigation€had€been€discontinued€given€the€lack€of€evidence€that€an€unlawful€act€had€beenŠ P( #& Šcommitted.€The€letter€indicated€that€the€requirement€of€Danish€citizenship€had€to€be€considered€inŠ @)$' Šconnection€with€the€possibility€of€enforcement€and€that€the€bank€had€given€assurances€that€theŠ 0*€%( Šprovision€would€be€deleted€when€printing€new€application€forms.€Š  +p&) ŠĢ2.5€On€21€August€1996€the€DRC€lodged€a€complaint€with€the€State€Prosecutor€in€Viborg,Š -P(+ Šchallenging€the€decision€of€the€police€department€to€consider€the€citizenship€criterion€legitimate.€TheŠ š-@), Šauthor€had€a€clear€permanent€connection€to€Denmark€in€view€of€the€fact€that€he€was€married€to€aŠ ° ŠDanish€citizen€and€had€a€regular€job.€The€fact€that€the€bank€still€insisted€on€documentation€withŠ  š Šregard€to€Danish€citizenship€constituted€a€discriminatory€act€which€could€not€be€justified€by€theŠ ą Šbank's€interest€in€enforcing€its€claim.€The€DRC€also€emphasized€the€fact€that€Ō_ŌSparbankŌ_Ō€Vest€had€notŠ €Š Šprovided€any€information€regarding€foreign€customers,€despite€the€fact€that€such€information€wasŠ pĄ Šrelevant€to€determine€whether€or€not€the€loan€policy€was€discriminatory.€By€letter€dated€6€NovemberŠ ` ° Š1996€the€State€Prosecutor€informed€the€DRC€that€he€did€not€see€any€reason€to€overrule€the€policeŠ P   Šdecision.€Š @  ŠĢ2.6€The€author€indicates€that€the€decision€of€the€State€Prosecutor€is€final,€in€accordance€with€sectionŠ  p  Š101€of€the€Danish€Administration€of€Justice€Act.€He€also€states€that€questions€relating€to€briningŠ `  Šcharges€against€individuals€are€entirely€at€the€discretion€of€the€police€and,€therefore,€the€author€hasŠ P  Šno€possibility€of€bringing€the€case€before€a€court.€Š š@  ŠĢņņThe€complaintóó€Š Š  ŠĢ3.1€Counsel€claims€that€the€facts€stated€above€amount€to€violations€of€article€2,€paragraph€1€(d),€andŠ ° Šarticle€6€of€the€Convention,€according€to€which€alleged€cases€of€discrimination€have€to€beŠ  š Šinvestigated€thoroughly€by€the€national€authorities.€In€the€present€case€neither€the€police€departmentŠ ą Šof€Skive€nor€the€State€Prosecutor€examined€whether€the€bank's€loan€policy€constituted€indirectŠ €Š Šdiscrimination€on€the€basis€of€national€origin€and€race.€In€particular,€they€should€have€examined€theŠ pĄ Šfollowing€issues:€first,€to€what€extent€persons€applying€for€loans€were€requested€to€show€theirŠ `° Špassports;€second,€to€what€extent€Sparbank€Vest€granted€loans€to€none€Danish€citizens;€third,€to€whatŠ P  Šextent€Sparbank€Vest€granted€loans€to€Danish€citizens€living€abroad.€Š @ ŠĢ3.2€Counsel€further€claims€that€in€cases€such€as€the€one€under€consideration€there€might€be€aŠ  p Šreasonable€justification€for€permanent€residence.€However,€if€loans€were€actually€granted€to€DanishŠ ` Šcitizens€who€did€not€have€their€permanent€residence€in€Denmark,€the€criterion€of€citizenship€wouldŠ P Šin€fact€constitute€racial€discrimination,€in€accordance€with€article€1,€subparagraph€1,€of€theŠ š@ ŠConvention.€It€would€be€especially€relevant€for€the€police€to€investigate€whether€an€intentional€orŠ ą0 Šan€unintentional€act€of€discrimination€in€violation€of€the€Convention€had€taken€place.€Š Š  ŠĢņņState€party's€submission€on€admissibility€and€counsel's€commentsóó€Š °"  ŠĢ4.1€In€a€submission€dated€28€April€1998€the€State€party€notes€that€according€to€section€1€(1)€of€ActŠ $ą" ŠNo.€626€(Act€against€Discrimination)€any€person€who,€while€performing€occupational€or€nonnprofitŠ €%Š # Šactivities,€refuses€to€serve€a€person€on€the€same€conditions€as€others€due€to€that€person's€race,€colour,Š p&Ą!$ Šnational€or€ethnic€origin,€religion€or€sexual€orientation€is€liable€to€a€fine€or€imprisonment.€ViolationŠ `'°"% Šof€the€Act€is€subject€to€public€prosecution,€i.e.€private€individuals€cannot€bring€a€case€before€theŠ P( #& Šcourts.€Š @)$' ŠĢ4.2€If€the€prosecutor€considers€that€no€offence€has€been€committed,€or€that€it€will€not€be€possible€toŠ  +p&) Šbring€evidence€sufficient€for€conviction€and,€therefore,€discontinues€the€investigation,€the€injuredŠ ,`'* Šparty€still€has€the€possibility€of€bringing€a€civil€action€claiming€compensation€for€pecuniary€orŠ -P(+ Šnonnpecuniary€damage.€An€action€claiming€compensation€for€pecuniary€damage€is€not€relevant€inŠ š-@), Šthe€present€case,€since€the€loan€was€actually€granted€with€the€applicant's€wife€listed€as€borrower€andŠ ° Šthe€applicant€as€spouse.€It€would,€however,€have€been€relevant€to€bring€a€civil€declaratory€actionŠ  š Šagainst€the€bank€claiming€that€it€acted€against€the€law€when€it€refused€the€loan€application.€SuchŠ ą Šaction€is€recognized€in€domestic€casenlaw.€Accordingly,€the€State€party€considers€that€a€civil€actionŠ €Š Šis€a€possible€remedy€which€the€applicant€should€have€made€use€of€and€that€the€nonnuse€of€thisŠ pĄ Šremedy€renders€the€case€inadmissible.€Š ` ° ŠĢ4.3€The€State€party€also€argues€that€the€author€had€the€possibility€of€complaining€to€the€OmbudsmanŠ @  Šof€the€Danish€Parliament€about€the€decision€of€the€prosecutor.€The€fact€that€the€prosecutors€are€partŠ 0 € Šof€the€public€administration€means€that€their€activities€are€subject€to€the€Ombudsman's€power€toŠ  p  Šinvestigate€whether€they€pursue€unlawful€aims,€whether€they€make€arbitrary€or€unreasonableŠ `  Šdecisions€or€whether€they€commit€errors€or€omissions€in€other€ways€in€the€performance€of€theirŠ P  Šduties.€The€result€of€a€complaint€to€the€Ombudsman€may€be€that€the€police€and€the€prosecutor€reopenŠ š@  Šthe€investigation.€Š ą0  ŠĢ4.4€The€State€party€also€argues€that€the€communication€is€manifestly€illnfounded.€Its€objections,Š Ą Šhowever,€are€explained€in€its€assessment€of€the€merits€of€the€case.€Š ° ŠĢ5.1€Counsel€contends€that€the€State€party€fails€to€indicate€on€which€provision€of€the€Danish€Act€onŠ ą ŠTort€it€bases€its€claim€that€civil€action€can€be€taken€against€Sparbank€Vest.€He€assumes€that€the€StateŠ €Š Šparty€refers€to€section€26€of€the€Act.€However,€to€his€knowledge,€no€cases€relating€to€racialŠ pĄ Šdiscrimination€have€ever€been€decided€by€Danish€courts€on€the€basis€of€that€section.€Accordingly,Š `° Šthere€is€no€evidence€in€Danish€casenlaw€to€support€the€interpretation€given€by€the€State€party.€Š P  ŠĢ5.2€Counsel€also€contends€that€a€private€party€may€only€be€liable€under€section€26€if€there€is€an€actŠ 0€ Šwhich€infringes€national€law.€In€the€present€case,€however,€the€relevant€bodies€within€the€prosecutionŠ  p Šsystem€did€not€find€any€reason€to€investigate;€it€would,€therefore,€have€been€very€difficult€toŠ ` Šconvince€a€court€that€there€was€any€basis€for€liability€on€the€part€of€Sparbank€Vest.€In€thoseŠ P Šcircumstances€a€theoretical€remedy€based€on€section€26€of€the€Danish€Act€on€Tort€does€not€seem€toŠ š@ Šbe€an€effective€remedy€within€the€meaning€of€the€Convention.€Š ą0 ŠĢ5.3€With€respect€to€the€possibility€of€filing€a€complaint€with€the€Ombudsman,€counsel€argues€thatŠ Ą! Šsuch€remedy€is€irrelevant,€since€the€Ombudsman's€decisions€are€not€legally€binding.€Š °"  ŠĢņņThe€Committee's€admissibility€decisionóó€Š $ą" ŠĢ6.1€During€its€fiftynthird€session€in€August€1998€the€Committee€examined€the€admissibility€of€theŠ p&Ą!$ Šcommunication.€It€duly€considered€the€State€party's€contention€that€the€author€had€failed€to€exhaustŠ `'°"% Šdomestic€remedies€but€concluded€that€the€civil€remedies€proposed€by€the€State€party€could€not€beŠ P( #& Šconsidered€an€adequate€avenue€of€redress.€The€complaint€which€was€filed€first€with€the€policeŠ @)$' Šdepartment€and€subsequently€with€the€State€Prosecutor€alleged€the€commission€of€a€criminal€offenceŠ 0*€%( Šand€sought€a€conviction€under€the€Danish€Act€against€Discrimination.€The€same€objective€could€notŠ  +p&) Šbe€achieved€by€instituting€a€civil€action,€which€would€lead€only€to€compensation€for€damages.€Š ,`'* ŠĢ6.2€At€the€same€time€the€Committee€was€not€convinced€that€a€civil€action€would€have€any€prospectŠ š-@), Šof€success,€given€that€the€State€Prosecutor€had€not€considered€it€pertinent€to€initiate€criminalŠ ° Šproceedings€regarding€the€applicant's€claim.€Nor€was€there€much€evidence€in€the€information€broughtŠ  š Što€the€attention€of€the€Committee€that€a€complaint€before€the€Ombudsman€would€result€in€the€caseŠ ą Šbeing€reopened.€Any€decision€to€institute€criminal€proceedings€would€still€be€subject€to€theŠ €Š Šdiscretion€of€the€State€Prosecutor.€No€possibilities€would€then€be€left€for€the€complainant€to€file€aŠ pĄ Šcase€before€a€court.€Š ` ° ŠĢ6.3€Accordingly,€on€17€August€1998,€the€Committee€declared€the€communication€admissible.€Š @  ŠĢņņThe€State€party's€observations€on€the€meritsóó€Š  p  ŠĢ7.1€The€State€party€submits€that€Mr.€Habassi€complained€to€the€police€on€28€May€1996.€On€12Š P  ŠAugust€1996€the€police€interviewed€the€credit€manager€of€Sparbank€Vest€in€Skive,€who€was€notifiedŠ š@  Šof€Mr.€Ō_ŌHabassiŌ_Ō's€complaint.€According€to€the€police€report€the€manager€stated€that€all€loan€applicantsŠ ą0  Šsigned€the€same€type€of€application€form€and€that€the€Danish€Bankers€Association€had€decided€thatŠ Š  Šthe€phrase€Athat€I€am€a€Danish€national@€would€be€deleted€when€the€application€forms€wereŠ Ą Šreprinted.€No€further€investigative€steps€were€taken.€By€letter€dated€12€August€1996€the€ChiefŠ ° ŠConstable€in€Skive€informed€the€DRC€that€it€had€decided€to€discontinue€the€investigation,€since€itŠ  š Šcould€not€reasonably€be€assumed€that€a€criminal€offence€subject€to€public€prosecution€had€beenŠ ą Šcommitted.€The€letter€also€provided€details€on€the€possibility€of€filing€an€action€for€damages€andŠ €Š Šenclosed€guidelines€on€how€to€file€a€complaint.€By€letter€of€the€same€date€the€Chief€Constable€alsoŠ pĄ Šinformed€Ō_ŌSparbankŌ_Ō€Vest€that€the€investigation€had€been€discontinued.€Š `° ŠĢĢ7.2€The€State€party€recalls€that€on€21€August€1996€the€DRC€complained€about€the€Chief€Constable'sŠ 0€ Šdecision€to€the€District€Public€Prosecutor€in€Viborg.€DRC€stated€in€its€complaint€that€it€found€itŠ  p Šworrying€that€the€Chief€Constable€apparently€considered€the€requirement€of€nationality€motivatedŠ ` Šby€the€need€to€ensure€enforcement€to€be€a€lawful€criterion.€Mr.€Habassi€had€a€Danish€civilŠ P Šregistration€number€and€a€national€register€address€in€Denmark.€That€in€itself€ought€to€have€beenŠ š@ Šsufficient€to€prove€his€ties€with€Denmark.€In€addition,€he€stated€on€the€loan€application€that€heŠ ą0 Šreceived€a€salary€and€had€a€Danish€spouse.€The€bank's€practice€of€demanding€documentation€aboutŠ Š  Šnationality€was€a€discriminatory€act€which€could€not€be€justified€by€considerations€of€enforcement.€Š Ą! ŠĢ7.3€Ō_ŌDRCŌ_Ō€also€stated€that€for€Mr.€Habassi€it€was€immaterial€whether€the€refusal€of€the€bank€was€basedŠ  #š! Šon€negative€attitudes€towards€ethnic€minorities€(for€instance€that€they€are€poor€debtors)€or€on€genuineŠ $ą" Šconcern€on€the€part€of€the€bank€about€enforcement.€The€salient€fact€was€that€despite€having€satisfiedŠ €%Š # Šall€the€conditions€for€being€granted€a€loan,€he€was€required€(probably€because€of€hisŠ p&Ą!$ Šforeignnsounding€name)€to€provide€further€documentation.€It€was€therefore€Mr.€Habassi's€MiddleŠ `'°"% ŠEast€background€that€was€the€cause€of€the€refusal€and€not€the€more€formal€criterion€of€nationality.Š P( #& ŠThe€bank's€statement€that€the€requirement€of€Danish€nationality€would€be€removed€from€theŠ @)$' Šapplication€forms€did€not€alter€the€fact€that€Mr.€Habassi€had€been€exposed€to€unlawful€differentialŠ 0*€%( Štreatment€against€which€the€Danish€authorities€had€a€duty€to€offer€protection€pursuant€to€theŠ  +p&) ŠConvention.€Š ,`'* ŠĢ7.4€The€State€party€also€recalls€that€the€District€Public€Prosecutor€found€no€basis€for€reversing€theŠ š-@), ŠChief€Constable's€decision€and€argued,€in€particular,€that€neither€the€Act€against€Discrimination€norŠ ° Šthe€Convention€include€nationality€as€an€independent€ground€of€discrimination.€Against€thisŠ  š Šbackground€it€must€be€assumed€that€discrimination€against€foreign€nationals€only€violates€the€ActŠ ą Što€the€extent€that€it€could€be€assimilated€to€discrimination€on€the€basis€of€national€origin€or€one€ofŠ €Š Šthe€other€grounds€listed€in€section€1€(1).€According€to€the€legislative€history€of€the€Act,€it€had€to€beŠ pĄ Špresumed€that€certain€forms€of€differential€treatment€could€be€considered€lawful€if€they€pursued€aŠ ` ° Šlegitimate€aim€seen€in€the€light€of€the€purpose€of€the€Act.€In€the€processing€of€loan€applications€theŠ P   Šapplicant's€ties€with€Denmark€may€be€of€importance,€among€other€things,€for€assessing€theŠ @  Špossibility€of€enforcement€of€the€creditor's€claim.€In€consideration€of€this€the€data€concerning€theŠ 0 € Šapplicant's€nationality€were€objectively€justified.€Š  p  ŠĢ7.5€The€State€party€argues€that€the€police€investigation€in€the€present€case€satisfies€the€requirementŠ P  Šthat€can€be€inferred€from€the€Convention€and€the€Committee's€practice.€According€to€theŠ š@  ŠAdministration€of€Justice€Act€the€police€initiates€an€investigation€when€it€can€be€reasonably€assumedŠ ą0  Šthat€a€criminal€offence€subject€to€public€prosecution€has€been€committed.€The€purpose€of€theŠ Š  Šinvestigation€is€to€clarify€whether€the€conditions€for€imposing€criminal€liability€or€other€criminalŠ Ą Šsanctions€have€been€fulfilled.€The€police€will€reject€an€information€laid€if€no€basis€is€found€forŠ ° Šinitiating€an€investigation.€If€there€is€no€basis€for€continuing€an€investigation€already€initiated,€theŠ  š Šdecision€to€discontinue€it€can€also€be€made€by€the€police,€provided€no€provisional€charge€has€beenŠ ą Šmade.€Š €Š ŠĢ7.6€In€the€State€party's€opinion,€there€is€no€basis€for€criticizing€the€Chief€Constable's€and€the€DistrictŠ `° ŠPublic€Prosecutor's€decisions,€which€were€taken€after€an€investigation€had€actually€been€carried€out.Š P  ŠThe€police€took€the€information€seriously€and€its€decision€was€not€unsubstantiated.€The€decision€wasŠ @ Šnot€only€based€on€the€information€forwarded€by€the€author,€including€the€written€correspondenceŠ 0€ Šwith€the€bank€about€its€credit€policy,€but€also€on€interviews€with€the€author€and€a€credit€manager€ofŠ  p Šthe€bank.€Š ` ŠĢ7.7€The€State€party€refers€to€the€Committee's€opinion€regarding€communication€4/1991€in€which€theŠ š@ ŠCommittee€stated€that€Awhen€threats€of€racial€violence€are€made€and€especially€when€they€are€madeŠ ą0 Šin€public€and€by€a€group,€it€is€incumbent€upon€the€State€to€investigate€with€due€diligence€andŠ Š  Šexpedition€(1)€It€argues,€however,€that€the€present€case€is€of€a€different€nature€and€therefore€theŠ Ą! ŠCommittee€cannot€reasonably€set€out€the€same€requirements€to€investigate€as€in€the€said€opinion.Š °"  ŠEven€if€the€requirement€that€it€is€incumbent€on€the€police€to€Ō_ŌAinvestigateŌ_Ō€with€due€diligence€andŠ  #š! Šexpedition€were€to€apply€in€the€present€case,€where€the€loan€application€was€actually€granted,€theŠ $ą" ŠState€party€considers€that€the€requirement€was€met.€Although€the€information€laid€did€not€lead€toŠ €%Š # Šprosecution,€the€handling€of€it€by€the€police€did€afford€the€applicant€effective€protection€andŠ p&Ą!$ Šremedies€within€the€meaning€of€article€2,€paragraph€1€(d),€and€article€6€of€the€Convention.€Š `'°"% ŠĢ7.8€The€State€party€further€contends€that€there€is€no€basis€either€for€criticizing€the€legal€assessmentŠ @)$' Šmade€by€the€prosecutor.€It€is€noted€in€this€connection€that€not€every€differentiation€of€treatment€isŠ 0*€%( Šunlawful€discrimination€within€the€meaning€of€the€Convention.€In€General€Recommendation€XIVŠ  +p&) Šon€article€1,€paragraph€1,€of€the€Convention€the€Committee€stated€that€Aa€differentiation€of€treatmentŠ ,`'* Šwill€not€constitute€discrimination€if€the€criteria€for€such€differentiation,€judged€against€the€objectivesŠ -P(+ Šand€purposes€of€the€Convention,€are€legitimate€(...).€In€considering€the€criteria€that€may€have€beenŠ š-@), Šemployed,€the€Committee€will€acknowledge€that€particular€actions€may€have€varied€purposes.€InŠ ° Šseeking€to€determine€whether€an€action€has€an€effect€contrary€to€the€Convention€it€will€look€to€seeŠ  š Šwhether€that€action€has€an€unjustifiable€disparate€impact€upon€a€group€distinguished€by€race,€colour,Š ą Šdescent€or€national€or€ethnic€origin.@€The€decisions€of€both€the€Chief€Constable€and€the€DistrictŠ €Š ŠPublic€Prosecutor€show€that€the€decisions€were€based€on€the€fact€that€differentiation€of€treatment€thatŠ pĄ Špursues€a€legitimate€aim€and€respects€the€requirement€of€proportionality€is€not€prohibitedŠ ` ° Šdiscrimination.€Š P   ŠĢ7.9€Finally,€the€State€party€dismisses€the€author's€claims€that€questions€relating€to€the€pursuance€byŠ 0 € Šthe€police€of€charges€against€individuals€are€entirely€up€to€the€discretion€of€the€police€and€that€thereŠ  p  Šis€no€possibility€of€bringing€the€case€before€the€Danish€courts.€Firstly,€it€is€possible€to€complain€toŠ `  Šthe€relevant€District€Public€Prosecutor;€secondly,€the€applicant€had€the€possibility€of€filing€a€civilŠ P  Šaction€against€the€bank;€and€thirdly,€the€applicant€had€the€possibility€of€complaining€to€theŠ š@  ŠOmbudsman.€The€effect€of€such€complaint€to€the€Ombudsman€may€be€that€the€police€and€theŠ ą0  Šprosecutor€reopen€the€investigation.€Š Š  ŠĢņņCounsel's€commentsóó€Š ° ŠĢ8.1€Counsel€contends€that€the€police€interviewed€the€author€but€had€only€a€brief€telephoneŠ ą Šconversation€with€the€bank.€No€detailed€investigation,€for€example€about€the€requirementsŠ €Š Šconcerning€Danish€citizens€living€abroad,€was€carried€out.€The€police€did€not€at€all€examine€whetherŠ pĄ Šthe€case€amounted€to€indirect€discrimination€within€the€meaning€of€the€Convention.€The€Committee,Š `° Šhowever,€stressed€the€duty€of€States€parties€to€duly€investigate€reported€incidents€of€racialŠ P  Šdiscrimination€in€its€concluding€observations€regarding€communication€4/1991.€Š @ ŠĢ8.2€The€State€party€states€that€the€requirement€of€Danish€citizenship€was€only€to€be€seen€inŠ  p Šconnection€with€the€assessment€of€the€ties€with€Denmark€of€the€person€applying€for€a€loan€inŠ ` Šcorrelation,€therefore,€with€the€possibilities€of€subsequent€judicial€recovery€of€the€amount€of€the€loanŠ P Šin€case€of€default.€Counsel€underlines€that€such€reason€was€not€mentioned€by€the€credit€manager€ofŠ š@ ŠSparbank€Vest,€as€reflected€in€the€police€report.€The€report€says€that€the€police€assistant€E.P.€hadŠ ą0 Šcontacted€the€credit€director€of€Sparbank€Vest€who€was€of€the€opinion€that€the€bank€had€not€doneŠ Š  Šanything€illegal€in€connection€with€the€loan€application€in€question,€since€all€applicants€signed€theŠ Ą! Šsame€type€of€application€form€with€the€formulation€Athat€I€am€a€Danish€citizen.€The€bank€did€notŠ °"  Šmention€any€particular€reason€for€its€practice.€It€did€not,€in€particular,€declare€that€there€was€aŠ  #š! Šrequirement€of€residence€due€to€the€possibility€of€enforcing€claims€against€debtors.€It€appears,Š $ą" Štherefore,€that€the€reason€in€question€had€been€made€up€by€the€police€in€Skive€on€their€own€initiative.Š €%Š # ŠEven€if€the€reason€came€from€the€bank€itself€it€appears€to€be€highly€irrelevant€for€an€evaluation€ofŠ p&Ą!$ Šwhether€the€requirements€of€the€Convention€have€been€met.€Š `'°"% ŠĢ8.3€It€is€clear€that€Danish€citizenship€is€not€a€guarantee€for€subsequent€judicial€recovery€of€theŠ @)$' Šdefaulted€amount€if€the€Danish€citizen€lives,€for€example,€in€Tunisia.€The€application€of€a€criterionŠ 0*€%( Šof€citizenship€for€the€reason€given€by€the€police€would€indeed€be€a€serious€indication€that€indirectŠ  +p&) Šdiscrimination€on€grounds€prohibited€by€the€Convention€had€taken€place.€The€possibilities€ofŠ ,`'* Šsubsequent€judicial€recovery€would€rather€justify€a€criterion€of€residence.€However,€with€respect€toŠ -P(+ Šsuch€criterion€counsel€draws€the€attention€of€the€Committee€to€a€letter€of€6€April€1995€addressed€toŠ š-@), Šthe€DRC€in€which€the€Minister€of€Business€Affairs€(Erhvervsministeren)€expresses€the€view€that€aŠ ° Šcredit€policy€according€to€which€no€credit€is€granted€to€persons€unless€they€have€lived€in€DenmarkŠ  š Šfor€at€least€five€years€would€be€contrary€to€the€discrimination€rules.€It€is€the€author's€conclusion€thatŠ ą Šthe€police€did€not€at€all€attempt€to€clarify€with€the€bank€the€real€reason€behind€the€requirement€ofŠ €Š Šcitizenship.€Š pĄ ŠĢ8.4€Counsel€states€that,€according€to€the€State€party,€the€decisions€of€the€Chief€Constable€and€theŠ P   ŠState€Prosecutor€were€based€on€the€fact€that€differentiation€of€treatment€that€pursues€a€legitimate€aimŠ @  Šand€respects€the€requirements€of€proportionality€is€not€prohibited€discrimination.€He€argues,Š 0 € Šhowever,€that€the€authorities€did€not€in€fact€examine€whether€a€legitimate€aim€was€pursued€by€theŠ  p  Šbank€and€that€in€cases€of€alleged€discrimination€the€decision€whether€or€not€to€initiate€proceedingsŠ `  Šmust€be€taken€after€a€thorough€investigation€of€the€alleged€cases€of€discrimination.€Š P  ŠĢņņExamination€of€the€meritsóó€Š ą0  ŠĢ9.1€The€Committee€has€considered€the€author's€case€in€the€light€of€all€the€submissions€andŠ Ą Šdocumentary€evidence€produced€by€the€parties,€as€required€under€article€14,€paragraph€7€(a),€of€theŠ ° ŠConvention€and€rule€95€of€its€rules€of€procedure.€It€bases€its€findings€on€the€followingŠ  š Šconsiderations.€Š ą ŠĢ9.2€Financial€means€are€often€needed€to€facilitate€integration€in€society.€To€have€access€to€the€creditŠ pĄ Šmarket€and€be€allowed€to€apply€for€a€financial€loan€on€the€same€conditions€as€those€which€are€validŠ `° Šfor€the€majority€in€the€society€is,€therefore,€an€important€issue.€Š P  ŠĢ9.3€In€the€present€case€the€author€was€refused€a€loan€by€a€Danish€bank€on€the€sole€ground€of€hisŠ 0€ ŠŌ_ŌnonnDanishŌ_Ō€nationality€and€was€told€that€the€nationality€requirement€was€motivated€by€the€need€toŠ  p Šensure€that€the€loan€was€repaid.€In€the€opinion€of€the€Committee,€however,€nationality€is€not€the€mostŠ ` Šappropriate€requisite€when€investigating€a€person's€will€or€capacity€to€reimburse€a€loan.€TheŠ P Šapplicant's€permanent€residence€or€the€place€where€his€employment,€property€or€family€ties€are€toŠ š@ Šbe€found€may€be€more€relevant€in€this€context.€A€citizen€may€move€abroad€or€have€all€his€propertyŠ ą0 Šin€another€country€and€thus€evade€all€attempts€to€enforce€a€claim€of€repayment.€Accordingly,€theŠ Š  ŠCommittee€finds€that,€on€the€basis€of€article€2,€paragraph€(d),€of€the€Convention,€it€is€appropriate€toŠ Ą! Šinitiate€a€proper€investigation€into€the€real€reasons€behind€the€bank's€loan€policy€Ō_ŌvisnnvisŌ_Ō€foreignŠ °"  Šresidents,€in€order€to€ascertain€whether€or€not€criteria€involving€racial€discrimination,€within€theŠ  #š! Šmeaning€of€article€1€of€the€Convention,€are€being€applied.€Š $ą" ŠĢ9.4€The€Committee€notes€that€the€author,€considering€the€incident€an€offence€under€the€Danish€ActŠ p&Ą!$ Šagainst€Discrimination,€reported€it€to€the€police.€First€the€police€and€subsequently€the€StateŠ `'°"% ŠProsecutor€in€Ō_ŌViborgŌ_Ō€accepted€the€explanations€provided€by€a€representative€of€the€bank€and€decidedŠ P( #& Šnot€to€investigate€the€case€further.€In€the€Committee's€opinion,€however,€the€steps€taken€by€the€policeŠ @)$' Šand€the€State€Prosecutor€were€insufficient€to€determine€whether€or€not€an€act€of€racial€discriminationŠ 0*€%( Šhad€taken€place.€Š  +p&) ŠĢ10.€In€the€circumstances,€the€Committee€is€of€the€view€that€the€author€was€denied€effective€remedyŠ -P(+ Šwithin€the€meaning€of€article€6€of€the€Convention€in€connection€with€article€2€(d).€Š š-@), Ї11.1€The€Committee€recommends€that€the€State€party€take€measures€to€counteract€racialŠ ° Šdiscrimination€in€the€loan€market.€Š  š ŠĢ11.2€The€Committee€further€recommends€that€the€State€party€provide€the€applicant€with€reparationŠ €Š Šor€satisfaction€commensurate€with€any€damage€he€has€suffered.€Š pĄ ŠĢ12.€Pursuant€to€rule€95,€paragraph€5,€of€its€rules€of€procedure,€the€Committee€would€wish€to€receiveŠ P   Šinformation,€as€appropriate€and€in€due€course,€on€any€relevant€measures€taken€by€the€State€party€withŠ @  Šrespect€to€the€recommendations€set€out€in€paragraphs€11.1€and€11.2.€Š 0 € ŠĢ[Done€in€English,€French,€Russian€and€Spanish,€the€English€text€being€the€original€version.]€Š `  ŠĢĢņņNotesóóŠ ą0  Šą  ą1/€€€Ō_ŌL.K.Ō_Ō€v.€The€Netherlands,€Ō_ŌCERDŌ_Ō/C/42/D/4/1991,€para.€6.6.