COMMISSION STAFF WORKING DOCUMENT 2023 Rule of Law Report Country Chapter on the rule of law situation in Cyprus Accompanying the document COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS 2023 Rule of Law Report The rule of law situation in the European Union
Date: 2023-07-05
Institutions: European Commission, Secretariat-General
Subjects: Cyprus, administrative transparency, corruption, democracy, independence of the judiciary, infringement of EU law, pluralism in the media, political rights, rule of law

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 5.7.2023  SWD(2023) 813 final  COMMISSION STAFF WORKING DOCUMENT 2023 Rule of Law Report          Country Chapter on the rule of law situation in Cyprus Accompanying the document COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS 2023 Rule of Law Report                                 The rule of law situation in the European Union {COM(2023) 800 final} - {SWD(2023) 801 final} - {SWD(2023) 802 final} - {SWD(2023) 803 final} - {SWD(2023) 804 final} - {SWD(2023) 805 final} - {SWD(2023) 806 final} - {SWD(2023) 807 final} - {SWD(2023) 808 final} - {SWD(2023) 809 final} - {SWD(2023) 810 final} - {SWD(2023) 811 final} - {SWD(2023) 812 final} - {SWD(2023) 814 final} - {SWD(2023) 815 final} - {SWD(2023) 816 final} - {SWD(2023) 817 final} - {SWD(2023) 818 final} - {SWD(2023) 819 final} - {SWD(2023) 820 final} - {SWD(2023) 821 final} - {SWD(2023) 822 final} - {SWD(2023) 823 final} - {SWD(2023) 824 final} - {SWD(2023) 825 final} - {SWD(2023) 826 final} - {SWD(2023) 827 final}  
 
 
ABSTRACT 

The Cypriot justice system has undergone significant reforms, including new courts and levels 
of jurisdiction. The new system of appointments of judges to the Supreme Constitutional Court 
and the Supreme Court includes a positive step involving the judiciary, in line with European 
standards. The composition of the Supreme Council of the Judicature was extended to include 
non-judicial members, thus enhancing its democratic legitimacy, while it does not yet allow 
for a broader participation of judges chosen by their peers, in line with European standards. 
The draft law on reform of the Law Office of the Republic tabled in Parliament does not provide 
a  clearer  distinction  between  its  advisory  and  prosecutorial  role.  The  absence  of  review  of 
decisions of the Attorney General not to prosecute or to discontinue criminal proceedings raise 
concerns. The justice system continues to face serious challenges as regards its efficiency. A 
number of ongoing reforms aim to improve the quality and efficiency of the justice system, 
including the level of digitalisation, but their implementation is slow. The appointment of new 
judges and the adoption of new procedural rules are positive developments, while the shortage 
of  support  staff  remains  a  challenge.  Plans  to  renovate  outdated  buildings  aim  to  improve 
current working conditions.  

The Independent Anti-Corruption Authority has started its operations, albeit with limited staff. 
The implementation of the national anti-corruption strategy is on track. Concerns exist on the 
limited access  to  information impacting the  effectiveness  of  audits on the finance of public 
institutions.  Shortcomings  exist  in  terms  of  the  effectiveness  of  investigations  and 
prosecutions,  and  results  on  high-level  corruption  cases  are  still  missing.  The  legislative 
framework  on  lobbying  continues  to  improve,  while  the  asset  declaration  system  remains 
incomplete as the relevant legislative act is still pending in Parliament. The implementation of 
provisions on conflicts of interest for members of Parliament continues, and no further steps 
were  taken  concerning  similar  provisions  for  the  public  service.  Awareness-raising  actions 
were launched on the protection of whistleblowers. The implementation of ethics provisions 
for the police and the judiciary continued over the past year, with an overall decrease of open 
cases. The application of the investor citizenship scheme has stopped in practice. 

The  regulatory  framework  relating  to  transparency  of  media  ownership  in  the  audio-visual 
media  sector  was  strengthened  for  broadcast  media.  There  have  been  no  developments 
regarding  the  regulation  of  state  advertising.  Discussions  are  underway  between  the 
Government  and  the  Cyprus  Broadcasting  Corporation  with  a  view  to  modernising  the  law 
regulating public service media. Some challenges have been encountered in the implementation 
of the law on public access to information. A bill on press freedom would, if adopted, introduce 
provisions  relating  to  electronic  media,  enshrine  a  code  of  practice  in  law  and  contain 
provisions aimed at safeguarding the safety of journalists and other media workers.  

The creation of the e-consultation platform aims to increase accessibility and transparency in 
the  law-making  process,  while  further  action  is  required  to  address  persistent  shortcomings 
regarding the effective and timely consultation of stakeholders. Plans aiming at digitalising the 
law-making  process  are  expected  to  improve  the  quality  of  and  access  to  legislation.  The 
reinforcement of the Ombudsperson regulatory framework resulted in its upgrading to an A-
status National Human Rights Institution. Administrative and financial burdens raise concerns 
regarding the environment for civil society. 

1 

 
 
RECOMMENDATIONS 

Overall, concerning the recommendations in the 2022 Rule of Law Report, Cyprus has made: 

  Significant  progress  on  ensuring  that  the  reform  on  the  appointment  of  the  Supreme 
Constitutional Court and Supreme Court judges takes into account European standards on 
judicial appointments and the opinion of the Venice Commission.  

  Some progress on ensuring that the reform on the composition of the Supreme Council of 
the Judicature takes into account European standards regarding Councils for the Judiciary 
and the opinion of the Venice Commission. 

  Some  progress  on  continuing  to  improve  the  effective  investigation  and  adjudication  of 
high-level corruption cases, including by strengthening the Office of the Attorney General 
and its budgetary independence. 

  No progress on introducing rules on asset disclosure for elected officials to establish regular 

and comprehensive filing, combined with effective, regular and full verifications. 

  Some  progress  on  strengthening  the  rules  and  mechanisms  to  enhance  the  independent 
governance  of  public  service  media  taking  into  account  European  standards  on  public 
service media. 

  Some progress  on  establishing a  framework  for the effective and timely  consultation  of 

stakeholders in the legislative process. 

On this basis, and considering other developments that took place in the period of reference, 
and in addition to recalling the commitments made under the national Recovery and Resilience 
Plan relating to certain aspects of the justice system and the anti-corruption framework, it is 
recommended to Cyprus to: 

  Strengthen the independence and the accountability of the Prosecution Service, including 
by  providing  for  a  possibility  of  review  of  the  decision  of  the  Attorney  General  not  to 
prosecute  or  to  discontinue  proceedings,  taking  into  account  European  standards  on 
independence and autonomy of the prosecution.  
Introduce  rules  on  asset  disclosure  for  elected  officials  to  establish  regular  and 
comprehensive filing, combined with effective, regular and full verifications  

 

  Ensure  that  the  recently  established  Independent  Authority  for  Anti-Corruption  has  the 

financial, human and technical resources to effectively perform its competences. 

  Adopt legislation to ensure fair and transparent distribution of advertising expenditure by 

the state and state-owned companies.  

  Advance with the process aimed at strengthening the rules and mechanisms to enhance the 
independent governance of public service media taking into account European standards 
on public service media. 

  Proceed with the adoption of the framework for the effective and timely consultation of 

stakeholders in the legislative process and ensure its implementation. 

2 

 
 
 
 
 
I. 

JUSTICE SYSTEM  

The  organisation  of  the  justice  system  underwent  a  significant  reform,  including  the 
establishment of new courts and levels of jurisdiction1. Since 1 July 2023, the court system is 
composed  of  six  District  Courts,  six  Assize  Courts2,  the  Administrative  Court3,  the 
Administrative Court of International Protection4, the Commercial and the Admiral Court5 at 
first instance. In addition, there are family courts, rent control courts, industrial disputes courts 
and a military court6. A Court of Appeals has been established to deal with appeals against all 
judgments issued at first instance7. A third instance of jurisdiction was established, comprising 
the Supreme Constitutional Court and the Supreme Court8. First and second instance judges 
are appointed, transferred and promoted by the Supreme Council of Judicature (SCJ)9. Judges 
at the highest courts are appointed by the President of the Republic. The Prosecution Service 
is organised under the Attorney General of the Republic, who is appointed by the President of 
the Republic10. The Attorney General heads also the Law Office of the Republic, which is an 
independent service11 assisting him, not subjected to any ministry. Cyprus participates in the 
European  Public  Prosecutor’s  Office  (EPPO).  The  independent  national  bar  association  has 
regulatory and disciplinary competence as regards its members. 

Independence  

The level of perceived judicial independence in Cyprus continues to be average among 
both the general public and companies. Overall, 54% of the general population and 44% of 
companies perceive the level of independence of courts and judges to be ‘fairly or very good’ 

1   In July 2023, the Seventeenth Amendment to the Constitution Act of 2022 (Law 103(Ι)/2022) entered into 
force, together with the amendments of the Law on the Administration of justice of 1964 (Laws 145(I)2022 
and 146(I)2022) putting into effect a major restructuring of the court system. Contribution by the Supreme 
Court to the 2023 Rule of Law Report.  

2   The Assize Court has unlimited jurisdiction to hear and determine at first instance any criminal case. 
3   Establishment and Function of the Administrative Court, Law 131 (I)/2015. 
4   Establishment and Function of the Administrative Court for International Protection, Law 73 (I)/2018. 
5   Establishment and Operation of the Commercial Court and the Admiralty Court, Law 62 (I)/2002. The Courts 

will adjudicate, at first instance, on high profile commercial and admiralty cases respectively. 

6   2022 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus p.3. 
7   The Court of Appeals is composed of 16 judges and has three divisions: civil, criminal and administrative. 
8   The Supreme Constitutional Court, composed of nine judges, mainly rules on (i) unconstitutionality claims; 
(ii)  conflicts  of  competence  between  public  authorities;  and  (iii)  administrative  cases  at  third  degree.  The 
Supreme Court, composed of seven judges, acts as third degree of jurisdiction in all civil and criminal cases, 
and cases under the competence of specialized courts.  

9   The Supreme Council of Judicature is composed of all the judges of the Supreme Court, the Advocate General, 
the President of the Cyprus Bar Association and two experienced lawyers. Constitution of Cyprus, Article 157 
para. 2. This constitutional provision is further elaborated in Law on the Administration of Justice of 1964, 
Section 10, as modified by Laws 163(I)/2022 and 223(I)/2022. 

10   The Attorney General has the power, exercisable at his discretion in the public interest, to institute, conduct, 
take over and continue or discontinue any proceedings for an offence against any person (legal or natural) in 
the Republic. The Attorney General is also the legal adviser of the Republic, of the President, of the Council 
of Ministers and of the Ministers individually. He performs all other functions and duties conferred on him by 
the Constitution or by statutory law. See Constitution of Cyprus, Article 112. 

11   The Attorney General’s representatives (law officers) act on his behalf and only take instructions from him. 
All  law  officers  are  members  of  the  Public  Service,  subject  to  the  Public  Service  Law  and  Regulations 
including disciplinary procedures as all other public servants. 

3 

 
                                                           
in  202312.  According  to  data  in  the  2023  EU  Justice  Scoreboard,  the  perceived  judicial 
independence  among  the  general  public  has  consistently  increased  in  the  last  years.  The 
perceived judicial independence among the general public has increased in comparison with 
2022 (50%), but it is lower than in 2016 (56%). The perceived judicial independence among 
companies  has  remained  stable  with  a  slight  decrease  compared  to  2021  (45%),  and  2016 
(50%). 

Significant progress has been achieved on the reform of the appointments of the judges 
of  the  Supreme  Constitutional  Court  and  the  Supreme  Court.  The  2022  Rule  of  Law 
Report recommended to Cyprus to ‘ensure that the reform on the appointment of the Supreme 
Constitutional  Court  and  Supreme  Court  judges  takes  into  account  European  standards  on 
judicial  appointments  and  the  opinion  of  the  Venice  Commission’13.  New  legislation  was 
adopted in August 2022 and entered into force on 1 July 202314. It maintains the power of the 
President  of  the  Republic  to  appoint  the  judges  of  the  two  courts  in  question15,  while 
establishing a new body, the Advisory Judicial Council, to advise the President on the selection, 
namely by preparing a non-binding list of the most suitable candidates in alphabetical order. 
The Advisory Judicial Council is composed of the judges of the court for which the candidates 
apply16,  the  Attorney  General,  the  President  of  the  Bar  association  and  two  experienced 
lawyers. Only the judges-members have the right to vote. The President of the Republic is not 
bound to appoint a person from the list of the proposed candidates17. In so far as the President 
will  follow  the  proposed  list  in  practice,  the  revised  system  appears  to  be  in  line  with  the 
European standards according to which, where the constitutional or legal provisions prescribe 
that  political  organs  take  decisions  concerning  the  selection  and  career  of  judges,  an 
independent and competent authority drawn in substantial part from the judiciary should be 
authorised  to  make  recommendations  or  express  opinions,  which  the  relevant  appointing 
authority follows in practice18. In its opinion on the envisaged reform, the Venice Commission 
has  made  some  further  recommendations  and  comments  in  order  to  further  improve  the 
objectivity of the appointment process.19 As recommended by the Venice Commission, the law 

12   Figures 49 and 51, 2023 EU Justice Scoreboard. The level of perceived judicial independence is categorised 
as follows: very low (below 30% of respondents perceive judicial independence as fairly good and very good); 
low (between 30-39%), average (between 40-59%), high (between 60-75%), very high (above 75%). 

13   2022 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, p. 2. 
14   Law on the Administration of Justice of 1964, as modified by Laws 145(I)/2022 and 163(I)/2022, Article 4 

para. 4. 2022 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, pp. 3-4. 

15   Constitution of Cyprus, Articles 133 para 2 and 153 para 2. Under the previous system, Supreme Court judges 
were appointed by the President of the Republic. According to an established practice, the President previously 
consulted the Supreme Court, whereby, the President of the Republic, almost without exception, followed the 
recommendations of the Supreme Court, which proposed the first instance judge longest in service for each 
vacancy. The same practice applied to the appointment of the President of the Supreme Court. See 2021, 2022 
Rule of Law Reports, Country Chapter on the rule of law situation in Cyprus, p. 2 and p. 4. 

16   Depending on whether the vacant post concerns the Supreme Constitutional Court or the Supreme Court. 
17   See also, Figure 57, 2023 EU Justice Scoreboard. 
18   Council of Europe: Committee of Ministers (2010), Recommendation CM/Rec(2010)12 of the Committee of 

Ministers to member states on judges: independence, efficiency and responsibilities, paras. 46-48.  

19   In particular, the Venice Commission recommended: (i) to replace the Attorney General in the composition of 
the Advisory Judicial Council; (ii) to provide for a graduated recommendation and reflect on the desirability 
to require the President to give reasons when he does not follow the recommendation; (iii) to provide that the 
reasons for the decisions of the Council should be made available to applicants on request; (iv) to provide that 
an unsuccessful candidate should have the right to challenge the decision of the Advisory Judicial Council, 
and (v) to provide for pre-existing, clear and transparent criteria for appointment. The Venice Commission 
suggested as a further improvement that the President would need to give reasons in writing when he takes 

4 

 
                                                           
requires  the  evaluation  of  candidates  to  be  made  following  pre-defined  criteria20.  The 
Government  considers  that  it  is  not  possible  under  the  Constitution  to  take  other  elements 
suggested by the Venice Commission21. Therefore, there has been significant progress on the 
implementation of the recommendation made in the 2022 Rule of Law Report. 

Some  progress  has  been  made  on  the  composition  of  the  Supreme  Council  of  the 
Judicature, while a broader participation of the judges selected by their peers is lacking. 
The  2022  Rule  of  Law  Report  recommended  to  Cyprus  to  ‘ensure  that  the  reform  on  the 
composition of the Supreme Council of the Judicature takes into account European standards 
regarding Councils for the Judiciary and the opinion of the Venice Commission’22. The reform 
was adopted in August 2022 and entered into force on 1 July 202323. It provides for the judicial 
review of the decisions of the Supreme Council of the Judicature by the Supreme Constitutional 
Court. Furthermore, it extends the composition of the Supreme Council of the Judicature to 
include, beside its judicial component consisting of all judges of the Supreme Court, a non-
judicial component with the aim to enhance its democratic legitimacy. The Attorney General, 
the  President  of  the  Bar  association  and  two  experienced  lawyers  now  participate,  without 
voting rights, in sessions regarding the appointment, promotion and transfer of judges. The Bar 
association  pointed  to  the  positive  experience  from  its  President’s  first  participation  to  the 
appointments under the newly established system, a view shared by the Association of judges24. 
Regarding the judicial component, the new law did not move forward with the initial proposal 
to have this component consisting of senior members from the various court levels, which had 
raised  concerns  as  to  the  selection  by  seniority  instead  of  by  election  through  peers25.  The 

any decision which does not follow the recommendation of the Advisory Judicial Council. Venice Commission 
opinion on three bills reforming the judiciary, CDL-AD(2021)043, para. 59. 

20   The candidate must be of a high moral standard and have at least twelve years of professional practice, either 
as a lawyer or as a judge. In addition, candidate judges shall have a broad knowledge of the specific areas of 
law or proven professional experience.  

21   The Government stated that a graduated recommendation by the Advisory Judicial Council and the need for 
the President of the Republic to give reasons when he does not follow the recommendation would constitute 
a limitation to the President’s absolute power. According to the Government, the establishment of the Advisory 
Judicial  Council  is  already  a  limitation  to  the  President’s  constitutional  right  as  compared  to  the  previous 
system. This right cannot be further limited without raising unconstitutionality claims (Input from Cyprus on 
the implementation of the recommendations made in the 2022 Rule of Law Report, pp. 2-3). As regards the 
Venice Commission’s comment that an unsuccessful candidate should be entitled to challenge the decision of 
the Advisory Judicial Council, or at least the procedure under which the appointment decision was made, the 
Government  noted  that  it  is  not  possible  under  the  national  legal  system  for  unsuccessful  candidates  to 
challenge  the  opinion  of  the  Advisory  Judicial  Council  or  the  decision  of  President.  According  to  the 
Government, the legal system does not provide a legal basis to challenge preparatory acts or opinions or acts 
of government. Article 146 of the Constitution provides judicial review only for enforceable administrative 
acts. Input from Cyprus for the 2023 Rule of Law Report p. 3. 

22   2022 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, p. 2. 
23   Law on the Administration of Justice of 1964, as modified by Laws 145(I)/2022 and 163(I)2022, Article 10. 

See also 2022 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, pp. 4-5. 

24   Information  received  from  the  Cyprus  Bar  association  and  the  Association  of  judges  in  the  context  of  the 

country visit in Cyprus. 

25   2022 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus p. 5. The initial proposal 
foresaw that the Supreme Council of Judicature would consist of nine members: the President and the three 
senior judges of the Supreme Court, the President of the Court of Appeals, the most senior President of the 
District Court, the President of the Association of Judges, the Attorney General and the President of the Bar 
Association.  In  respect  to  this  proposal,  the  Venice  Commission  had  recommended  that:  (i)  the  judicial 
members should be chosen by their peers instead of selected by seniority; (ii) the Attorney General should 
only participate without the right to vote (Venice Commission opinion on three bills reforming the judiciary 

5 

 
                                                           
Government has indicated that the Constitution requires the Supreme Court to be the Supreme 
Council  of  the  Judicature26.  Hence,  the  judges  participating  in  the  Supreme  Council  of  the 
Judicature  remain  all  the  judges  of  the  Supreme  Court.  The  Council  of  Europe 
Recommendation,  aiming  to  safeguard  the  pluralism  inside  the  judiciary,  calls  for  judges-
members of judicial councils to be chosen by their peers from all levels of the judiciary27. As 
the  new  composition  of  the  Supreme  Council  of  the  Judicature  enhances  its  democratic 
legitimacy, while not yet allowing for a broader participation of judges chosen by their peers, 
some progress has been made regarding the implementation of the recommendation made in 
the 2022 Rule of Law Report. 

The draft law on the reform of the Law Office, which has been tabled in Parliament, does 
not  provide  a  clearer  distinction  between  its  advisory  and  prosecutorial  role.  The 
Prosecution Service is part of the Law Office of the Republic, headed by the Attorney General. 
There is no clear separation between staff entrusted with advisory tasks and those carrying out 
prosecutorial tasks28. In 2016, GRECO expressed the view that being an integrated part of the 
Law Office, the prosecution service may be seen to operate in an environment that is not fully 
free from potential or real risk of improper influence29. Following approval by the Government 
in February 2023, a draft law was submitted to the relevant parliamentary committee in April 
2023 for discussion30.The proposed law focuses on two main points: (i) the salary alignment 
of  law  officers  with  the  salary  scales  of  judicial  officers31  and  (ii)  the  establishment  of  a 
prosecutorial council to decide on recruitment, promotions, dismissals, and disciplinary action 
against  law  officers32.  The  draft  law  also  includes  the  creation  of  the  position  of  General 

(CDL-AD(2021)043), para. 60). This proposal was assessed and strongly supported by GRECO in relation to 
its recommendation concerning the composition of the Supreme Council of the Judicature (GRECO (2020) 
Fourth Evaluation Round - Second Compliance Report Cyprus, paras. 49-52). 

26   The Government stated that the composition of the Supreme Council of the Judicature cannot be extended 
without breaching the Constitution;  Article 157 of the Constitution provides that the Supreme Court is the 
Supreme  Council  of  the  Judicature.  Still,  according  to  the  Government,  it  was  possible  to  include  in  its 
composition non-judicial members, provided they did not have a right to vote. 

27   Recommendation CM/Rec(2010)12 of the Committee of Ministers of the Council of Europe, para 27. 
28   The Law Office consists of law officers and public prosecutors.. Both law officers and public prosecutors may 
in  principle  act  as  a  prosecutor  in  a  given  case  as  decided  by  the  Attorney  General.  The  prosecutors  deal 
normally with criminal cases which fall within the competence of the district courts, while the  law officers 
deal with prosecutions before the assize courts. GRECO (2016), Fourth Evaluation Round, Evaluation Report 
on Cyprus on Corruption prevention in respect of members of parliament, judges and prosecutors,  p. 38-39; 
Information received from the Law Office in the context of the country visit in Cyprus.  

29   GRECO (2016), Fourth Evaluation Round, Evaluation Report on Cyprus on Corruption prevention in respect 
of  members  of  parliament,  judges  and  prosecutors,  para.  176.  GRECO  addressed  a  corresponding 
recommendation aiming to strengthen the independence of the Prosecution Service, namely: Recommendation 
xiii “that reform considerations concerning the Law Office of the Republic include means to strengthen the 
independence of the prosecutorial functions and the capacity of the individual law officers and prosecutors to 
conduct their duties in a more autonomous way, guided by the safeguards necessary under the rule of law”. 
The recommendation has been assessed as not implemented yet, GRECO (2022), Fourth Evaluation Round 
Addendum to the Second Compliance Report on Cyprus, p. 9. 

30   Written contribution from the Law Office in the context of the country visit in Cyprus. 
31   The alignment of the salaries was already provided in the budget of the Law Office for 2020, as reported by 
Cyprus to GRECO. In assessing  this  measure, GRECO considered that:  “the only tangible  measure taken, 
which  concern  the  alignment  of  the  remuneration  scales  between  judicial  officers  and  law  officers,  is  not 
enough in itself to consider this recommendation to be even partly implemented” (GRECO (2020), Fourth 
Evaluation Round - Second Compliance Report Cyprus, para. 74). 

32   Law officers and prosecutors being civil servants, these matters fall currently under the competence of the 
Public Service Commission. According to GRECO, the current procedures for recruiting and promoting public 

6 

 
                                                           
Director of the Law Office, who will act as controlling officer for financial control purposes33. 
According  to  the  Law  Office,  there  are  no  plans  to  make  a  clearer  distinction  between  the 
prosecution and the advisory role of the Office, as the need for such reform has not been either 
expressly pointed out nor implied by GRECO34. The Bar association expressed the view that 
the establishment of an independent Director of the Public Prosecution Service is desirable35. 
Stakeholders also referred with scepticism to the dual role of the Law Office and referred to 
public commitments made by the President of the Republic to reflect on the separation of the 
advisory role and the prosecutorial function36.  

The  absence  of  a  possibility  of  review  of  the  decision  of  the  Attorney  General  not  to 
prosecute or to discontinue proceedings raises concerns. According to data in the 2022 EU 
Justice  Scoreboard,  Cyprus  is  the  only  Member  State  where  no  form  of  review  of  such 
decisions, neither judicial nor hierarchical, is provided37. The Constitution provides that the 
Attorney General has the power, exercisable at his or her discretion in the public interest, to 
institute, conduct, take over and continue or discontinue any criminal proceedings38. The Rules 
on  Criminal  Procedure  further  provide  that  the  Attorney  General  may  register  a  stay  of 
prosecution at any stage prior to the delivery of a judgment, resulting in the termination of the 
proceedings39. According to the Supreme Court, the decisions of the Attorney General cannot 
be reviewed and do not need to be reasoned40. The Government considers that the exclusive 
power  of  the  Attorney  General  to  initiate,  conduct,  or  discontinue  criminal  proceedings  is 
balanced by the latter’s practice to provide reasons for his decisions, unless he is prevented 
from  doing  so  for  reasons  of  public  interest  or  the  protection  of  other  persons’  rights.  
According  to  European  standards,  the  absence  of  remedies  against  decisions  of  public 
prosecutors not to prosecute results in a high risk of non-accountability41. Stakeholders also 

officials in Cyprus are built on very solid ground as guided by precise rules provided for in the Public Service 
Law. GRECO (2016), Fourth Evaluation Round, Evaluation Report on Cyprus on Corruption prevention in 
respect of members of parliament, judges and prosecutors, para. 186.  

33   Written contribution from the Law Office in the context of the country visit in Cyprus. 
34   Written contribution from the Law Office in the context of the country visit in Cyprus. 
35   Contribution from the Council of Bars and Law Societies of Europe for the 2023 Rule of Law Report, p. 35. 
36   Written  contribution  from  the  Audit  Office  in  the  context  of  the  country  visit  in  Cyprus,  pp.  3-4;  Written 
contribution from Oxygono in the context of the country visit in Cyprus. The pre-election governance program 
of  the  new  President  of  the  Republic  included  under  the  pillar  Reform,  point  1.3  “Evaluate,  in  line  with 
GRECO recommendations, the separation of the advisory role and the prosecutor”. 

37   Figure  59,  2022  EU  Justice  Scoreboard  (no  data  for  Belgium  available).  The  Government  notes  that  the 
Constitution  grants  the  Attorney  General  exclusive  jurisdiction  over  criminal  prosecutions,  without  any 
constitutional  limitation.  Written  contribution  from  the  Law  Office  in  the  context  of  the  country  visit  in 
Cyprus. 

38   Constitution of Cyprus, Article 113 para. 2.  
39   Law on the Criminal Procedure, Article 154 para. 1. 
40   The  Supreme  Court held that the discretion of the  Attorney General is absolute and not subject to judicial 
review and that he does not have a duty to place sufficient grounds for his decisions (Supreme Court, Charilaos 
Xenophontos v. The Republic (1989) 2 RSCC 89; Police v. Athienitis (1983) 2 CLR 194; Yiannakis P. Ellinas 
v. The Republic (1989) 1 CLR 17). 

41   Any powers to start, stop and discontinue criminal proceedings, which are not subject to judicial review, do 
not comply with modern notions of the rule of law. (Venice Commission, CDL-AD(2018)028-e, Opinion on 
Constitutional  arrangements  and  separation  of  powers  and  the  independence  of  the  judiciary  and  law 
enforcement, para. 67). The biggest problems of accountability (or rather a lack of accountability) arise, when 
the prosecutors decide not to prosecute. If there is no legal remedy - for instance by individuals as victims of 
criminal acts - then there is a high risk of non-accountability (Venice Commission, CDL-AD(2010)040, Report 
on European Standards as regards the independence of the judicial system: Part II- the prosecution service, 
para. 45). See also, Venice Commission, CDL-AD(2016)017, Rule of Law Checklist, II.E.1.d.xii; Interested 

7 

 
                                                           
emphasised the need to establish adequate checks and balances against unlimited prosecutorial 
discretion42. 

Quality  

Ongoing  projects  aim  to  improve  the  quality  of  justice,  including  the  level  of 
digitalisation, while the implementation rate has been slow, and shortcomings remain. 
The  establishment  of  an  Independent  Court  Service  responsible  for  the  management  and 
administration  of  the  courts  is  an  ambitious  reform  project  that  is  expected  to  alleviate  the 
burden  on  the  Supreme  Court  and  serve  the  functioning  of  courts,  thus  contributing  to  an 
efficient  delivery  of  justice.  A  study,  including  recommendations  as  to  the  structure  of  the 
Court  Service,  its  procedures  and  staffing  requirements,  has  been  successfully  completed43. 
However, its implementation is under discussion between the relevant services and interested 
parties and is estimated to take up to three years44. The level of digitalisation remains low, as 
reflected  in  the  2023  EU  Justice  Scoreboard.  Despite  some  progress  in  the  adoption  of 
procedural rules allowing the use of digital technology in proceedings45 and the availability of 
secure electronic communication for prosecution services46, challenges remain, in particular 
regarding digital solutions to initiate and follow proceedings47 and the availability of digital 
tools  and  adequate  infrastructure  at  the  disposal  of  judges,  prosecutors  and  judicial  staff48. 
Ongoing projects plan to improve the use of digital technology, but they have so far not been 
completed. The target for completing the development and installation of the e-justice system 
by the end of 202249 has been further. The introduction of Digital Audio Recording in court 
proceedings aims to gradually replace the stenography used today. The project is also included 
in  the  National  Resilience  and  Recovery  Plan  and  is  scheduled  to  be  completed  in  March 
202550.  

Plans  to  renovate  outdated  buildings,  including  through  the  National  Resilience  and 
Recovery  Facility,  aim  to  improve  current  working  conditions.  The  extension  of  the 
Famagusta District Court, a milestone achieved under the National Resilience and Recovery 

parties of recognised or identifiable status, in particular victims, should be able to challenge decisions of public 
prosecutors not to prosecute; such a challenge may be made, where appropriate after an hierarchical review, 
either by way of judicial review, or by authorising parties to engage private prosecution (Recommendation 
CM/Rec(2000)19 of the Committee of Ministers of the Council of Europe on the role of public prosecution in 
the criminal justice system, para. 34. 

42   Written  contribution  from  the  Audit  Office  in  the  context  of  the  country  visit  in  Cyprus,  pp.  3-4;  Written 

contribution from Oxygono in the context of the country visit in Cyprus. 

43   The project was co-funded by the European Union via the Technical Support Instrument and implemented by 

the Council of Europe in cooperation with the European Commission. 

44   Written contribution from the Ministry of Justice in the context of the country visit in Cyprus, p. 4-5.  
45   Figure 41, 2023 EU Justice Scoreboard. 
46   Figure 44, 2023 EU Justice Scoreboard. 
47   Figures 45 and 46, 2023 EU Justice Scoreboard. 
48   Figure 42, 2023 EU Justice Scoreboard. Cyprus has the lowest score among all Member States.  
49   The  corresponding  milestone  183  under  the  National  Resilience  and  Recovery  Plan  initially  required  the 
installation and full operation of the e-justice system by December 2022, Annex to the Council Implementing 
Decision on the approval of the assessment of the Recovery and Resilience Plan for Cyprus, p. 103. 

50   Milestone 184 provides for the installation and full operation of digital audio recording in court proceedings, 
Annex  to  the  Council  Implementing  Decision  on  the  approval  of  the  assessment  of  the  Recovery  and 
Resilience Plan for Cyprus, p. 103. 

8 

 
                                                           
Plan, is a positive step in addressing inefficiencies caused by inadequate court premises51. The 
poor condition of the court buildings in Nicosia results in difficult working conditions for the 
judges and court staff52. While there are ongoing plans to renovate the buildings, future works 
are  not  expected  to  be  finalised  before  202553.  The  lack  of  a  comprehensive  computerised 
registration system and adequate storage areas have led to documents being lost, contributing 
to delays in the administration of justice. The need to strengthen the security of the courts to 
protect its personnel and property has also been underlined54.  

The  recruitment  of  new  judges  is  a  positive  step,  while  the  shortage  of  support  staff 
remains a challenge. The establishment of new courts, following the entry into force of the 
reform of the courts system, and the implementation of measures to reduce the backlog require 
the  creation  of  new  posts  for  judges55.  41  judges  have  been  appointed  by  February  202356, 
including, for the first time, experienced lawyers in senior judicial positions, a development 
welcomed by the Bar Association57. The process for appointing 49 additional judges is ongoing 
and  seeks  to  increase  the  general  capacity  of  the  judicial  system.  Nevertheless,  the  lack  of 
support  staff,  including  stenographers,  secretaries  and  clerks,  remains  a  challenge  causing 
significant  delays  in  the  adjudication  of  cases,  as  underlined  by  judges,  court  staff  and 
lawyers58.  

Trainings offered by the Judicial Training School and the establishment of the Academy 
of the Law Office aim to increase the quality of the justice. The Judicial Training School 
offers introductory and continuing training to judges, registrars, and legal officers, including 
training  abroad  through  different  networks59.  It  includes  courses  on  different  areas  of  law, 
judicial ethics, as well as on specific skills, such as judgment drafting, case management and 
digital skills60. The trainers are mostly judges61. The training on the new Civil Procedure Rules, 

51  Annex  to  the  Council  Implementing  Decision  on  the  approval  of  the  assessment  of  the  Recovery  and 
Resilience  Plan  for  Cyprus,  p.  103,  Milestone  186. The  five  new  courtrooms  were  inaugurated  in  January 
2023. 

52   Statements by the President of the Supreme Court before the Finance and Budget Committee of Parliament 
during the discussions on the budget of the Judicial Service, 18 November 2022. The Bar association referred 
to the condition of the Nicosia courts buildings as deplorable (Contribution from the Council of Bars and Law 
Societies of Europe for the 2023 Rule of Law Report, p. 35). See also, written contribution from the Supreme 
Court in the context of the country visit in Cyprus. 

53   Statements by the President of the Supreme Court before the Finance and Budget Committee of Parliament 

during the discussions on the budget of the Judicial Service, 18 November 2022. 

54   Supreme Court, Judicial Service, Strategic Plan 2022-2024, pp. 7-8. 
55   32 positions were created as an implementation measure of the project to reduce the backlog of delayed cases 

(Input from Cyprus for the Rule of Law Report, p. 19). 

56   Information received from the Director of Reform of the Supreme Court and the Bar association in the context 

of the country visit in Cyprus.  

57   Cyprus Bar association, Statement on the appointment of judges to the newly established Court of Appeals, 

31 January 2023.  

58   Information received from the Association of judges, the Director of Reform of the Supreme Court and the 

Bar association in the context of the country visit in Cyprus. 

59   The Judicial Training School was established in 2020 (2020 Rule of Law, Country Chapter on the rule of law 

situation in Cyprus p. 4). 

60   Information received from the Judicial Training School in the context of the country visit in Cyprus.  
61   The  Bar  association  pointed  that  more  trainings  by  experienced  lawyers  and  academics  could  enrich  the 
curriculum  and  called  to  reflect  on  the  need  for  training  prior  to  appointment  (currently,  the  introductory 
training is completed within the first two years after appointment). Contribution from the Council of Bars and 
Law Societies of Europe for the 2023 Rule of Law Report, p. 36.  

9 

 
                                                           
is considered a priority62 and is advancing as planned63. Ιn late 2022, the Law Office established 
the Academy of the Law Office to provide in-house training to its staff members64.  

Draft legislation on the granting of legal aid aims to make the procedure more efficient. 
Legal  aid  can  be  granted  in  the  majority  of  court  proceedings,  with  the  exception  of  civil 
proceedings65 and covers all costs. The person entitled to legal aid chooses a lawyer from the 
lists  of  lawyers  who  offer  their  services66.  In  September  2022,  the  Ministry  of  Justice  put 
forward  a  proposal  to  reform  the  procedure,  including  the  rotating  appointment  of  lawyers 
based on a list in alphabetical order67. In March 2023, the competent Parliamentary Committee 
discussed the draft legislation. Objections were raised, mainly by the Bar Association68, as to 
the constitutionality of the proposed rotation system. The Ministry of Justice will now further 
discuss the draft law with the Law Office.  

Efficiency 

Serious challenges remain regarding the efficiency of justice, in particular the excessive 
length  of proceedings.  The disposition  time in  civil  and commercial cases at  first  instance 
courts slightly decreased but remains the highest in the EU, as it reached 947 days in 202169. 
For administrative cases, the disposition time in 2021 remained at the same high level of 844 
days  (863  days  in  2020)70.  Furthermore,  the  disposition  time  at  second  instance  courts  has 
reached the worrying level of 3 132 days in 2021 (2 688 in 2020)71. In 2021, the clearance rate 
for litigious civil and commercial cases decreased to 81.3% (from 88.3%)72. The clearance rate 
in  2021  for  administrative  cases  was  exceptionally  low,  45.9%,  the  lowest  in  the  EU73. 
Stakeholders  have  highlighted  the  problems  caused  by  the  significant  delays  in  the 
administration  of  justice  and  identified  the  length  of  proceedings  as  the  most  important 

62   Training of judges is a target included in the National Resilience and Recovery Plan, which provides that by 
the end of 2025 at least 110 (out of 130) judges should have completed trainings on the new Civil Procedure 
Rules and other judicial skills.  

63   Information received from the Director of the Judicial Training School in the context of the country visit in 

Cyprus.  

64   The training programs will cover areas of law, legal skills, computer and other skills, including organization 
of work and management skills. Input from Cyprus for the 2023 Rule of Law Report, pp. 14-15. The first 
introductory lecture on EU law took place in February 2023. Written contribution from the Law Office in the 
context of the country visit in Cyprus, p. 1. 

65   However,  legal  aid  is  granted  for  civil  proceedings  relating  to  compensation  for  specific  human  rights 
violations, family law disputes, cross-border disputes and sales of a mortgage property (Law on Legal Aid No 
165(I) 2002). Written contribution from the Ministry of Justice in the context of the country visit in Cyprus, 
pp. 6-7.  

66   There are different lists of lawyers, according to the proceedings for which legal aid is granted. 
67   Other amendments included the introduction of a criminal offence if legal aid lawyers request additional fees 
from the applicant; increased penalties for applicants who make false declarations to obtain legal aid and the 
obligation to justify the court decision in case legal aid is not granted. Written contribution from the Ministry 
of Justice in the context of the country visit in Cyprus, p. 7. 

68   Information received from the Bar Association in the context of the country visit to Cyprus. 
69   Figure 5, 2023 EU Justice Scoreboard. 
70   Figure 8, 2023 EU Justice Scoreboard. 
71   Figure 9, 2023 EU Justice Scoreboard.  
72   Figure 10, 2023 EU Justice Scoreboard. 
73   Figure 12, 2023 EU Justice Scoreboard. 

10 

 
                                                           
challenge for the judicial system74. Concrete targets to reduce the backlog of cases are included 
in the National Resilience and Recovery Plan and require that specific proportions of backlog 
cases be cleared within specific timeframes75. According to the manager for backlog cases76, 
as a result of the different measures and practices applied, a reduction of the backlog cases is 
already observed since February 202377 .   

Special Procedural Rules on Delayed Cases aim to allow courts to deal more efficiently 
with backlog cases. Further to the new Rules on Civil Procedure, which will enter into force 
in September 202378, the Supreme Court issued the 2022 Special Procedural Rules on Delayed 
Cases, in November 202279. The Rules apply to pending cases lodged between 2014 and 2018 
without a hearing on the merits. They provide judges with greater case management powers, 
including the possibility to adjudicate solely based on written evidence and limit the right to 
appeal against interim orders. In December 2022, the Rules were amended following strong 
reactions from the Bar association. The main issue of disagreement was the limitation on the 
number of witnesses to be heard, which is henceforth determined by the judges after consulting 
the lawyers80.  

The  establishment  of  new  courts  is  expected  to  balance  the  distribution  of  cases  and 
contribute  to  improve  efficiency.  The  Court  of  Appeal  is  expected  to  hear  3 149  cases  of 
which the vast majority (2 158) are civil appeals pending before the Supreme Court since 1 
January  201881.  The  two  Courts  of  special  jurisdiction,  the  Commercial  Court82  and  the 
Admiralty Court83, are expected to contribute to decongest the heavily burdened district courts. 
The  Commercial  Court  will  adopt  a  fast-track  procedure  to  deal  with  cases  in  a  timeframe 

74   Contribution from the Council of Bars and Law Societies of Europe for the 2023 Rule of Law Report, p. 37. 
Contribution  from  Oxygono for the 2023 Rule of  Law Report,  p. 17; The  Office  of the  Commissioner  for 
Administration and the Protection of Human Rights, Impact of 2022 ENNHRI rule of law reporting, p.21. 
75   Under C3.4R8 Efficiency of Justice: Target 181: Reduction of the backlog of cases and appeals pending for 

over two years before the District Courts and the Supreme Court by 20% from the 31 December 2020 level, 
to be completed by July 2024; and Target 182: Reduction of the backlog of cases and appeals pending for over 
two years before the District Courts and the Supreme Court by 40% from the 31 December 2020 level, to be 
completed by July 2026. 

76   A  former  president  of  the  Supreme  Court  oversees  the  Backlog  Project,  aiming  to  present  to  the  Supreme 
Court proposals addressing the backlog cases.  Suggestions  included the  completion of the inventory of all 
backlog cases, the restructuring of the Assize Court System, the introduction of remote trials for certain types 
of cases and the introduction of a compulsory alternative dispute resolution (ADR) stage, prior to the filing of 
certain types of cases; as well as the appointment of 10 additional judges on a two-year temporary basis from 
the ranks of retired lawyers, as a method of speeding up the trial of certain types of backlog cases. Written 
contribution from the Supreme Court in the context of the country visit. 

77   A reduction of 60% for the cases pending up to 2013, a reduction of 16% for the cases pending between the 
years  2014-2018  and  a  reduction  of  12%  for  the  cases  between  2019-2022.  Written  contribution  from  the 
Supreme Court in the context of the country visit. 

78   2022 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, pp. 6-7. 
79   Input from Cyprus for the 2023 Rule of Law Report, p. 11. 
80   Information received from the Bar Association in the context of the country visit to Cyprus.  
81   Input from Cyprus for the 2023 Rule of Law Report, p. 9. The Court of Appeal became operational on 1 July 

2023.  

82   The  Commercial  Court  has  jurisdiction  on  commercial  claims  over  EUR  2  000  000.  It  also  hears  all 
competition, arbitration and intellectual property related matters, irrespective of the amount of the dispute. It 
is composed of five judges.  

83   The Admiralty Court consists of two judges and has exclusive jurisdiction on admiralty claims relating to a 
vessel or an aircraft and issues of ownership, possession, mortgage or charge and damage caused by or to a 
vessel or loss of life.  

11 

 
                                                           
ranging from 9 months to a year. Both courts may conduct proceedings in English at the request 
of the parties, with a view to making justice more attractive, taking into account the diverse 
Cypriot community and the large number of ships registered in Cyprus84. 

II. 

ANTI-CORRUPTION FRAMEWORK  

The  Independent  Anti-Corruption  Authority  (IACA)  is  responsible  for  transparency  and 
prevention  of  corruption  in  both  the  public  and  private  sectors,  including  monitoring  the 
implementation of the national anti-corruption plan. The implementation of the Action Plan 
against  Corruption  (2021-2026)  expected  to  be  transferred  to  the  IACA  from  the  Office  of 
Transparency and Prevention of Corruption of the Ministry of Justice to the IACA in the second 
half  of  2023.  The  Attorney  General  maintains  overall  competence  to  prosecute  criminal 
offences,  including  corruption,  and  continues  to  provide  legal  advice  to  law  enforcement 
authorities investigating corruption offences. The Audit General office checks the expenses of 
public  institutions,  through  which  it  may  detect  suspicious  of  corruption.  Cyprus  is  not  a 
signatory party to the OECD Anti-Bribery Convention85. 

The perception among experts and business executives is that the level of corruption in 
the  public  sector  remains  relatively  high86.  In  the  2022  Corruption  Perceptions  Index  by 
Transparency International, Cyprus scores 52/100 and ranks 21st in the European Union and 
51st globally. This perception has significantly deteriorated87 over the past five years. The 2023 
Special  Eurobarometer  on  Corruption  shows  that  92%  of  respondents  consider  corruption 
widespread in their country (EU average 70%) and 58% of respondents feel personally affected 
by  corruption  in  their  daily  lives  (EU  average  24%)88.  As  regards  businesses,  95%  of 
companies consider that corruption is widespread (EU average 65%) and 72% consider that 
corruption  is  a  problem  when  doing  business  (EU  average  35%)89.  Furthermore,  19%  of 
respondents find that there are enough successful prosecutions to deter people from  corrupt 
practices  (EU  average  32%)90,  while  12%  of  companies  believe  that  people  and  businesses 
caught for bribing a senior official are appropriately punished (EU average 30%)91. 

The Independent Anti-Corruption Authority started its operations,  albeit with limited 
staff  resources.  The  Independent  Anti-Corruption  Authority  (IACA)  was  established  in 

84   Input from Cyprus for the 2023 Rule of Law Report, p. 13. 
85   OECD Convention on Combating Bribery of Foreign Public Officials in International Business Transactions, 

Ratification Status https://www.oecd.org/daf/anti-bribery/WGBRatificationStatus.pdf. 

86   Transparency International (2023), Corruption Perceptions Index 2022. The level of perceived corruption is 
categorised as follows: low (the perception among experts and business executives of public sector corruption 
scores above 79); relatively low (scores between 79-60), relatively high (scores between 59-50), high (scores 
below 50) 

87   In 2018 the score was 59, while in 2022 the score is 52. The score significantly increases/decreases when it 
changes  more  than  five  points;  improves/deteriorates  (changes  between  4-5  points);  is  relatively  stable 
(changes from 1-3 points) in the last five years. 

88 Special Eurobarometer 534 on Corruption (2023). The Eurobarometer data on citizens’ corruption perception 

and experience is updated every year. The previous data set is the Special Eurobarometer 523 (2022). 

89 Flash Eurobarometer 524 on Businesses’ attitudes towards corruption in the EU (2023). The Eurobarometer 
data  on  business  attitudes  towards  corruption  as  is  updated  every  year.  The  previous  data  set  is  the  Flash 
Eurobarometer 507 (2022). 

90  Special Eurobarometer 534 on Corruption (2023).  
91   Flash Eurobarometer 524 on Businesses’ attitudes towards corruption in the EU (2023).  

12 

 
 
                                                           
February 2022 and started its activity in December 202292. It is responsible for transparency 
and prevention of corruption in both the public and private sectors, including monitoring the 
implementation  of  the  national  anti-corruption  plan93.  The  IACA  has  no  investigative  or 
sanctioning powers94. In addition to the Chief Commissioner and four members of the board, 
currently IACA has just one temporary legal officer (seconded until 2024), plus five clerical 
staff (including two junior servants with a four-month contract), with an annual budget of EUR 
1  million95.  The  hiring  of  permanent  staff  is  delayed  because  the  specific  regulation  on 
personnel has not been adopted yet96. The IACA is concerned about the fact that the selection 
of  staff  must  be  done  centrally  (by  the  public  sector  commission),  and  not  directly  by  the 
IACA97.  The  inadequate  size,  specialisation  and  permanence  of  the  personnel  currently 
available are concerning given the scope of its tasks98. Since it was established in 2022, the 
IACA has received more than 50 complaints, (including some related to high-level officials, 
such  as  Ministers,  or  representatives  of  local  authorities99).  However,  no  cases  have  been 
forwarded to the Attorney General’s office so far100.  

The  implementation  of  the  national  anti-corruption  strategy  is  on  track.  In  accordance 
with the law establishing the IACA101, the monitoring on the implementation of the National 
Anti-Corruption Strategy will pass from the Ministry of Justice Office on Transparency to the 
IACA in the second half of 2023102. In 2022, the Ministry of Justice organised several activities 
to  implement  the  national  anti-corruption  strategy:  a)  four  workshops  on  the  prevention  of 
corruption in the public sector took place, with participation of civil servants and teachers; b) 

92   The IACA became operational after the adoption of implementing regulations by the Parliament. Input from 

Cyprus for the 2023 Rule of Law Report, p. 24. 

93   Law 19(I) of 2022 ‘On the Establishment and Operation of the Independent Authority against Corruption’.  
94   The  IACA  has  inspection  powers,  while  investigations  are  performed  by  the  Attorney  General’s  Office. 

Written contribution from the IACA in the context of the country visit to Cyprus. 

95   The  implementing  regulation  on  the  selection  procedure  of  IACA  staff  was  adopted  in  December  2022. 

Written contribution from the IACA in the context of the country visit to Cyprus. 

96   Input from Cyprus for the 2023 Rule of Law Report, p. 25. 
97   Information received from the IACA in the context of the country visit to Cyprus. According to international 
standards, anti-corruption agencies ‘shall have the power to recruit and dismiss their own staff according to 
internal  clear  and  transparent  procedures’.  UNODC  Jakarta  Statement  on  Principles  for  Anti-Corruption 
Agencies (2002), and Colombo commentary (2020). 

98   ‘Cyprus Mail (November 2022), New anti-corruption authority unable to work. The UN Convention against 
corruption (UNCAC) at Art 6(2) indicates that ‘The necessary material resources and specialised staff, as well 
as  the  training  that  such  staff  may  require  to  carry  out  their  functions,  should  be  provided.’  According  to 
relevant  international  standards,  anti-corruption  agencies  ‘shall  be  entitled  to  timely,  planned,  reliable  and 
adequate  resources for the  gradual capacity development and improvement of the agency’s operations and 
fulfilment of its mandate’. UNODC Jakarta Statement on Principles for Anti-Corruption Agencies (2002), and 
its Colombo commentary (2020). 

99   Written contribution from the IACA in the context of the country visit to Cyprus, p. 3. Complaints include 
allegations  against  a  Director  of  prison,  Financial  Mirror  (September  2022),  Claims  of  conspiracy  in 
Prisongate.  Media report that the Chief Commissioner of IACA announced the establishment of a special 
team to examine the allegations of corruption addressed against the former President of the Republic. Cyprus 
Mail (January 2023), Droushiotis’ corruption claims will be investigated by foreign experts. However, there 
is  no information available  whether the case is actually being examined by  the IACA,  which is a concern 
raised by NGOs. Information received from the NGOs in the context of the country visit to Cyprus. 

100  By law, the Attorney General office may order to IACA to stop investigation on single cases, in case the AG 
office is investigating or wants to investigate that case. Written contribution from the IACA in the context of 
the country visit to Cyprus. 

101  ‘Setting up the Anticorruption Authority’, Law 19(1)2022 of 17 February 2022. 
102  The Ministry of Justice will assist with this transition. Information received from the Ministry of Justice in the 

context of the country visit to Cyprus. 

13 

 
                                                           
a seminar for public officials involved in the implementation of the National Anti-Corruption 
Strategy103, as well as c) a mock competition for students on the fight against corruption104. In 
2022, a rotation programme of public servants, aimed at preventing corruptive activities, took 
place105. At the end of July 2022, the Council of Ministers adopted guidelines to avoid conflicts 
of interests in projects funded through the National RRP106.  

Concerns exist related to limited access to information that impacts the effectiveness of 
the audits performed by the Audit Office on the finance of public institutions. By law, the 
Audit Office107 is empowered to have unrestricted access to information deemed relevant to 
the audits of public entities108. However, the Auditor General reported that, after seeking the 
legal advice of the Attorney General, public institutions under audit do not disclose information 
requested by the Audit Office109. The Auditor General office raised concerns on the fact that 
limited  access  to  information  impairs  the  effectiveness  of  the  audits  and  the  fight  against 
corruption110. In its controls, the Audit Office encountered some deficiencies that may lead to 
corruption, especially related to awarding large public contracts without a public tender111. The 
Flash Eurobarometer on Businesses’ attitudes towards corruption in the EU shows that 65% of 
companies in Cyprus (EU average 26%) think that corruption has prevented them from winning 
a public tender or a public procurement contract in practice in the last three years112. Since July 

103  Input from Cyprus for the 2023 Rule of Law Report, p. 44. 
104  Written contribution from the Ministry of Justice in the context of the country visit to Cyprus, p. 2. 
105  Written contribution from the Ministry of Finance in the context of the country visit to Cyprus, p. 2. 
106 Decision No. 93.428, dated 28 July 2022. The guidelines are applicable to all implementing bodies undertaking 
investments and reforms under the recovery and resilience plan. Input from Cyprus for the 2023 Rule of Law 
Report, p. 41. 

107  The Audit Office of the Republic is an independent body competent to conduct audits in the public sector, for 
purposes of public reporting, optimal management of public resources and the fight against corruption and 
interference. The Auditor-General heads the Audit Office and is appointed by the President of the Republic, 
as per articles 115, 116 and 117 of the Constitution of Cyprus.  

108 As per the law on Submission of Data and Information to the Auditor General of the Republic (law 113(I) of 
2002).  On  this  matter,  the  International  Organization  of  Supreme  Audit  Institutions  (INTOSAI)  issued  a 
‘Statement by the INTOSAI development initiative following the potential independence challenges faced by 
the audit office of the republic of Cyprus’ (February 2021), in addition to the EU Contact Committee statement 
(CC  1/2021)  in  support  of  the  constitutional  role,  mandate  and  independence  of  the  Audit  Office  of  the 
Republic of Cyprus (May 2021).  

109  Audit Office (2022), Annual Report 2021, pp. 1-2; Audit Office, Statement on the Cyprus Investor Citizenship 
Scheme,  19  October  2022;  Audit  Office,  Statement  on  the  Refusal  of  the  Ministry  of  Defence  to  provide 
information, 29 April 2023.  

110 Including on single large cases, such as the so called ‘Golden Passports Scheme’. Written contribution from 
the Audit Office in the context of the country visit, p. 4. 2022 Rule of Law Report, Country Chapter on the 
rule of law situation in Cyprus, p. 12. 

111 Apparently, there are allegations on large construction and IT public contracts awarded directly, without public 
tendering.  Also,  the  licensing  of  State-owned  lands,  regardless  of  its  value,  is  excluded  by  the  public 
procurement law. Written contribution from the Auditor General Office in the context of the country visit to 
Cyprus, p. 8. 

112  Flash Eurobarometer 524 on Businesses’ attitudes towards corruption in the EU (2023). This is 39 percentage 

points above the EU average. 

14 

 
                                                           
2022, the Audit  office sent  seven cases  of possible corruption to  the  IACA113.  In 2022, the 
Audit Office issued guidance to facilitate audits114.  

Shortcomings  have  been  identified  in  terms  of  the  effectiveness  of  investigations  and 
prosecutions, and results on high-level corruption cases are still missing. The 2022 Rule 
of Law Report recommended to Cyprus to “continue to improve the effective investigation and 
adjudication  of  high-level  corruption  cases,  including  by  strengthening  the  Office  of  the 
Attorney General and its budgetary independence”115. In 2022, 14 lawyers were hired, while 
10 prosecutors and 24 lawyers are expected to join in the second half of 2023116. Currently, the 
Attorney General  office has  put  in  place  a  management  system mechanism for tracking the 
operations related to prosecutions, including on corruption117. The Anti-Corruption Taskforce, 
which was created at  the beginning of 2022 under the competence of the  Attorney  General 
office, convenes at regular intervals, as well as on ad hoc basis if needed118.  The Financial 
Crime Investigation Office of the Police continues to rely on 23  specialised officers119, and 
there is a need for reinforcement120. In 2022, 19 investigations for corruption were initiated: 6 
cases were brought to trial (this included one conviction, while 5 cases remained pending trial); 
1  case  was  closed,  and  12  cases  remain  pending  for  further  investigation121.Despite  these 
efforts, the limited human, financial and technical resources available continue to affect the 
investigations,  and  the  results  on  the  adjudication  of  high-level  cases  of  corruption  are  still 
missing. So far, there has been some progress on the implementation of the recommendation 
made in the 2022 Rule of Law Report. 

The asset declaration system remains incomplete as the approval of a relevant act remains 
pending since 2021. The 2022 Rule of Law Report recommended to Cyprus to “introduce rules 
on asset disclosure for elected officials to establish regular and comprehensive filing, combined 

113  The  information  on  other  types  of  crimes  is  addressed  to  the  police  or  the  Attorney  General  office.  If  the 
corruption  involves  European  Union  funding,  the  case  is  forwarded  to  OLAF  or  to  the  European  Public 
Prosecutor’s  Office,  depending  on  the  case.  Written  contribution  from  the  Auditor  General  Office  in  the 
context of the country visit to Cyprus, p. 8. 

114 Such as: Manual for the audit of the Financial Statements of the Republic; Audit Sampling Manual; Report 
Writing  Style  Guide  and  templates  of  reports;  Internal  Auditing  Guidelines.  Written  contribution  from  the 
Auditor General Office in the context of the country visit to Cyprus, p. 7. 

115  2022 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, p. 2. 
116 Written contribution from the Attorney General’s Office in the context of the country visit to Cyprus, p. 1. 
117 The criminal law department of the Attorney General office is developing a matrix to facilitate the management 
of cases. Information received from the Office of the Attorney General in the context of the country visit to 
Cyprus.  

118  With  specialised  officers  from  relevant  institutions  (such  as  the  National  Law  Office,  the  Anti-money 
Laundering Unit, and the Police, in addition to ad-hoc experts from other entities), the Anti-Corruption Task 
Force  has  an  overview  control  of  corruption  cases,  and  it  provides  directions  as  on  the  investigation  and 
handling before the court. 2022 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, 
p. 9. Information received from the Office of the Attorney General in the context of the country visit to Cyprus. 
119  There are 16 investigators in the Financial Crime Branch, plus five accountants and two investigators in the 
Financial Investigations Branch. The Financial Crime Investigation Office of the Police investigates serious 
and  complex  cases  of  economic  crimes  including  corruption,  fraud,  theft,  money  laundering  and  terrorism 
financing. The officers have academic or professional background in the fields of Economics, Accounting and 
Law. Written contribution from the Police in the context of the country visit to Cyprus, p. 1. 

120 Information received from the Police in the context of the country visit to Cyprus. 
121  In  2022,  also  16  persons  (including  3  mayors  and  5  councillors  of  villages  and  local  communities)  were 
convicted by the courts in 4 cases that were filed before the criminal courts in 2015, 2017, 2018 and 2019. 
Written contribution from the Attorney General’s Office in the context of the country visit to Cyprus, p. 7. 

15 

 
                                                           
with effective, regular and full verifications”122. With regard to asset declaration, some high-
ranking  officials123  and  a  few  elected  officials,  (such  as  members  of  Parliament  and  the 
President of the Republic)124, are bound to declare part of their assets125. However, data on the 
implementation of the asset disclosure mechanism, including possible sanctions, is still lacking. 
The draft bill on asset declarations for all elected and other civil servants that was tabled with 
the  Parliamentary  Committee  in  2021  remains  pending126,  and  the  concerns  set  out  in  the 
previous Rule of Law reports remain unaddressed127. Therefore, there has been no progress on 
the implementation of the recommendation made in the 2022 Rule of Law Report.  

The legislative framework on lobbying continues to improve, the conflicts of interest for 
members of Parliament are monitored by a parliamentary committee, while no further 
steps were taken towards a comprehensive legislation on conflicts of interest for the public 
service.  In  January  2023,  the  remaining  sections  6  and  7  (on  the  sanctions  and  penalties, 
respectively)  of  the  Law  on  the  transparency  of  lobbying128,  entered  into  force.  The 
implementing regulation on lobbying, which clarifies the procedure for declaring, recording, 
and publishing lobbying activities, was adopted in April 2023129. The IACA has prepared a 
declaration form and a code of ethics for lobbyists130. A Parliamentary Committee continues 
to monitor the compliance of members of Parliament with their Code of Conduct131. In 2022, 
there were three cases on conflicts of interest (compared to 21 in 2021), with one oral reprimand 
issued132.  Some  rules  on  conflicts  of  interest  in  the  public  service  exist  in  different  laws, 
however no further steps were taken towards a comprehensive regulation on conflict of interest 
for all State officials133.  

An awareness-raising action plan on the protection of whistleblowers was launched.  In 
2022, an awareness raising action plan was launched, including training for public officers and 
the online publication of guidelines on the whistleblowing procedure134. A list of authorities 
competent to support potential whistleblowers was drafted by the Ministry of Justice, and it is 
expected to be published online135. Since the entry into force of the law on the protection of 

122  2022 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, p. 2. 
123 As per Law 50(I) of 2004, high-ranking officials include (including Director Generals of the Parliament and 
the Ministries, the Accountant General and the Deputy Accountant General and the Secretary of the Council 
of Ministers. Written contribution from the Ministry of Finance in the context of the country visit to Cyprus, 
p. 1. 

124 As per Law (49 (I) of 2004. 
125 The existing asset declaration requirement for members of the Parliament does not cover all forms of assets 

above a certain threshold, including immovable property. 

126  Written contribution from the Ministry of Justice in the context of the country visit to Cyprus, p. 4. 
127  2020, 2021 and 2022 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, pp. 8, 9 and 

10 respectively. 

128  Law n. 20(I) of February 2022 ‘On transparency in public decision-making and related matters’. 
129  Written contribution from the Ministry of Justice in the context of the country visit, p. 6. 
130  Information received from the IACA in the context of the country visit to Cyprus. 
131  Information received from the Parliament in the context of the country visit to Cyprus.  
132  Written contribution from the Parliament in the context of the country visit to Cyprus, p. 1. 
133  2022 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, p. 11. 
134  Information received from the Ministry of Justice in the context of the country visit. Input from Cyprus for the 

2023 Rule of Law Report, p. 35. 

135  Written contribution from the Ministry of Justice in the context of the country visit to Cyprus, p. 8. 

16 

 
                                                           
whistleblowers in February 2022, there have been no whistleblowing reports received by the 
police and the IACA136. 

The implementation of ethics provisions for the police and the judiciary continued over 
the past year, with an overall decrease of cases opened against police officers. In 2022, the 
Police Internal Affairs Service (PIAS) was contacted 95 times with information (compared to 
101 times in 2021) about possible involvement of police officers in acts of corruption. Nineteen 
cases were investigated: two cases were transferred to the prosecution authorities (and brought 
to trial), while 10 cases were closed (for lack of evidence) and seven cases remain pending for 
further  investigation137.  In  the  same  year,  the  Investigation  of  Allegations  and  Complaints 
against the Police (IAIACAP) opened 71 disciplinary procedures (compared to 83 in 2021), 
which resulted in 11 decisions (compared to 46 in 2021) with sanctions (either a reprimand or 
a  fine)  issued  by  the  Chief  of  Police,  while  53  remain  pending  for  decision,  4  disciplinary 
proceedings were suspended and in 3 cases no disciplinary action was taken138. Newly recruited 
judges must attend a training on judicial ethics delivered by the judicial training school139.  

Cyprus  has  stopped  applying  its  investor  citizenship scheme  in  practice.  The  European 
Commission has frequently raised its serious concerns about the incompatibility with EU law 
of  investor  citizenship  schemes  in  light  of  EU  citizenship  and  the  principle  of  sincere 
cooperation.  Such  schemes  also  present  inherent  risks  of  corruption140.  The  infringement 
procedure launched in October 2020 concerning Cyprus’ scheme is ongoing141. A total of 26 
Cypriot law firms were audited by the Cyprus Bar Association in connection with the investor 
citizenship scheme, with five found guilty and fined for EUR 200 000142. Cyprus has stopped 
applying its investor citizenship scheme in practice, although the scheme’s legal framework 
remains in force. 

III.  MEDIA PLURALISM AND MEDIA FREEDOM 

In Cyprus, freedom of expression and the right of access to information find legal and formal 
protection in the Constitution.  Legislation expressly ensures protection of journalistic sources, 
fosters media pluralism in the radio and television sector, enshrines the formal independence 
of the media regulator and details the right of access to public sector information. The Law on 

136  Written contribution from the IACA in the context of the country visit to Cyprus, p. 3. 
137  Written  contribution  from  the  Police  Internal  Affairs  Service  (PIAS)  in  the  context  of  the  country  visit  to 

Cyprus, p. 1. 

138 Ibidem. 
139  Information received from national judicial training school in the context of the country visit to Cyprus. 
140 As  mentioned in the EU Commission's report of January  2019 (COM(2019) 12 final), those risks relate in 
particular to security, money laundering, tax evasion and corruption and the Commission has been monitoring 
wider issues of compliance with EU law raised by investor citizenship schemes. Following the Commission 
Recommendation on immediate steps in the context of the Russian invasion of Ukraine in relation to investor 
citizenship schemes140, in 2022 Cyprus withdrew its citizenship from 9 investors and 27 family members, in 
addition  to  citizenship  withdrawal  from  222  investors  and  family  members  in  the  context  of  national 
investigations. 

141  Information on the infringement procedure is available in the Commission’s database of infringement cases. 
Cyprus phased out its investor citizenship scheme as of November 2020, with all pending applications having 
been handled by 30 July 2021.  

142  The Bar association is looking into instances of money laundering allegedly occurred in delivering passports 
through investment schemes. ‘26 law firms audited in golden passport probe’, Financial Mirror (March 2023). 

17 

 
                                                           
the Cyprus Broadcasting Corporation (CyBC) lays down rules on the governance and financing 
of public service television and radio143.  

Cyprus’s media regulator, which is an independent Authority, is governed primarily, by 
the  Radio  and  Television  Organisations  Law  as  well  as  the  Cyprus  Broadcasting 
Corporation  Law.  The  legislation  was  amended  in  2021  and  expressly  stipulates  that  the 
Cyprus  Radio  Television  Authority  (CRTA),  the  regulator  for  audio-visual  media  services, 
shall  be  functionally  and  effectively  independent144.  The  Media  Pluralism  Monitor  (MPM) 
maintains its  overall low risk score for the independence of the media regulator although it 
points out, once more, that selection criteria for appointment of members by the Government 
remain very generic. On the other hand, the MPM points out that the authority will henceforth 
submit annual activity reports to the President of the Parliament based on an obligation set out 
in the above-mentioned law, thereby enhancing transparency overall145.  

The  regulatory  framework  relating  to  transparency  of  media  ownership  in  the  audio-
visual media sector was strengthened for broadcast media. As referred in the 2022 Rule of 
Law Report, the 2021 amendments to the Radio and Television Organisations Law addressed 
previously identified gaps by obliging all media service providers under Cypriot jurisdiction to 
make accessible to the CRTA information concerning their ownership structure, including the 
beneficial owners146. At present, the MPM once more classifies this as an area of high risk due 
to the total absence of regulation for digital media, the inexistence of ownership transparency 
obligations  for  print  media  and  inefficiency  in  ensuring  respect  of  ownership  information 
transparency  under  the  Radio  and  Television  Organisations  Law147.  In  Cyprus,  the  media 
regulatory authority has no power of review of media mergers and acquisitions. The competent 
Minister  may,  prior  to  the  decision  of  the  Competition  authority,  declare  that  a  notified 
concentration shall be deemed to be of major public interest as regards the effect it may have 
on the public security, the pluralism of the media or the principles of sound administration148.  

The lack of legislation and transparency in the field of state advertising remain issues of 
concern.  While  a  set  of  guidelines  regulating  advertising  campaigns  performed  by  the 
Government’s  press  and  information  office  were  previously  adopted  by  the  Ministry  of 
Interior149,  the  MPM  reports  that,  it  has  been  unable  to  obtain  data  and  information  on  the 
allocation  of  state  resources  to  the  media  for  the  reporting  period  from  the  competent 
authorities150.  Stakeholders consider that the area lacks any  real  transparency  which,  when 
coupled with other factors such as serious economic difficulties besetting the media sector151, 

143 Cyprus ranks 55th in the 2023 Reporters without Borders World Press Freedom Index compared to 65th the 

previous year. 

144  2022 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, p. 12. 
145  2023 Media Pluralism Monitor, country report for Cyprus p. 13. 
146  2022 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, p. 13. 
147  2023 Media Pluralism Monitor, country report for Cyprus pp. 14-15. 
148  Article 5 and Articles 36-39 of the Control of Concentration between Undertakings Law 83 (I) of 2014. In 
such cases, the case is referred to the Council of Ministers which may officially approve or not approve the 
concentration in question.  

149  2022 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, p. 13. 
150  2023 Media Pluralism Monitor, country report for Cyprus p. 19. 
151  Information received from the Union of Cypriot Journalists, the Committee on Media Ethics, the Institute for 
Mass Media and the Association of European Journalists (Cyprus) in the context of the country visit to Cyprus. 

18 

 
                                                           
could  have  negative  impact  on  editorial  freedom  and  independence  in  Cyprus152.  For  these 
reasons, the Monitor has considerably raised its risk level for this area from low risk to just one 
percentage point below high risk153.  

Some  progress  has  been  made  with  regard  to  the  independent  governance  of  public 
service media. The 2022 Rule of Law report recommended to Cyprus to “strengthen the rules 
and mechanisms to enhance the independent governance of public service media taking into 
account European standards on public service media”154. Discussions are underway between 
the  Government  and  the  CyBC  aimed  at  a  modernisation  of  the  Law  on  the  Cyprus 
Broadcasting Corporation, by modifying the system of appointment and dismissal of members 
of CyBC’s Board and establishing stricter eligibility conditions155. Appointments would only 
be possible following an open call for applications and any dismissal of a board member would 
need to be duly justified. While awaiting progress in this area, the Media Pluralism Monitor 
highlights  that  the  current  situation  permits    state  and  political  party  influence  on  CyBC’s 
operations, thereby maintaining its high-risk score for this area156.   While the concerns raised 
in  the  2022  rule  of  law  report157  and  by  MPM  persist,  the  above-mentioned  discussions 
represent  some  progress  with  regard  to  the  2022  Recommendation  on  enhancement  of  the 
independent governance of public service media158. 

Challenges persist with regard to requests for access to information159. According to the 
Commissioner for Information, these difficulties are primarily due to the competent services 
facing difficulties when processing requests for access within the statutory 30-day deadline160. 
The authorities also face difficulties in interpreting and applying the legal exceptions to access, 
given that the Law establishing the right of access was adopted in 2017 but only came into 
force in December 2020161. Irrespective of this, the Commissioner assesses the administration’s 
general level of compliance with her opinions and recommendations as satisfactory162. While 
positive developments were expected following the coming into force of the Law on Access to 
Public Sector Information, MPM concludes that the resulting “publication schemes” - adopted 
by the various authorities indicating how they intend to implement the law in effect  - leave 
considerable room for arbitrariness. As a result, MPM has significantly increased its risk level 
for this area which it now considers high-risk163.  

152  Written contribution received from the Organised Crime and Corruption Reporting Project in the context of 

the country visit to Cyprus.  

153  2023 Media Pluralism Monitor, country report for Cyprus p. 19. 
154 2022 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, p. 2. 
155 Information received from the Cypriot authorities in the context of the country visit to Cyprus.   
156 2023 Media Pluralism Monitor, country report for Cyprus p. 19. 
157 2022 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, pp. 13-14. 
158  According  to  the  European  Parliament’s  Flash  Eurobarometer:  News  &  Media  Survey  2022,  45%  of 
respondents in Cyprus stated that they trust public TV and radio stations, below the EU average of 49%. 
159  Law 184 (I)/2017 on the Right of Access to Public Sector Information which entered into force in 2020. 
160  Written contribution from the Commissioner of Information in the context of the country visit in Cyprus. 
161  Ibidem. 
162 The Information Commissioner is competent to assess compliance of authorities with Law 184 (I)/2017 on the 
Right of Access to Public Sector Information, make recommendations to public authorities, decide on complaints 
and impose administrative penalties. Information received from the Commissioner of Information in the context 
of the country visit in Cyprus.  

163  2023 Media Pluralism Monitor, country report for Cyprus p.12. 

19 

 
                                                           
A  bill  aimed  at  providing  a  legal  framework  for  press  freedom  remains  under 
discussion164. The draft Law on the Safeguarding of Freedom of the Press and the Operation 
of the Media, if adopted, would introduce provisions relating to electronic media, enshrine a 
code of practice in law and contain provisions to safeguard the safety of journalists and other 
media workers. The Council of Europe’s Platform to promote the protection of journalism and 
safety of journalists has published no new alerts since the publication of the 2022 Rule of Law 
Report, relating to the Republic of Cyprus165. The MPM points out that journalists continue to 
face numerous challenges due to economic pressures impacting the sector with many layoffs 
registered in 2022166. 

IV.  OTHER INSTITUTIONAL ISSUES RELATED TO CHECKS AND BALANCES 

The Republic of Cyprus is a presidential representative republic. The President of Cyprus is 
both Head of State and Head of Government. The House of Representatives is the Parliament, 
which is vested with legislative power. Both representatives and ministers have the right of 
legislative  initiative.  The  Supreme  Constitutional  Court  is  competent  to  assess  the 
constitutionality of laws in the context of specific cases brought before it167. There are a number 
of  national  independent  authorities,  organisations  and  institutions  that  aim  to  protect  and 
safeguard human rights.  

Some  progress  has  been  achieved  regarding  the  2022  recommendation  on  public 
consultations following the creation of the e-consultation platform, while further action 
is required to finalise the reform and address persistent shortcomings. The 2022 Rule of 
Law Report recommended to Cyprus to ‘establish a framework for the effective and timely 
consultation  of  stakeholders  in  the  legislative  process’168.  The  e-consultation  platform,  an 
electronic platform for public consultations, is expected to become operational in September 
2023.  The  platform  shall  replace  the  previous  practice  where  public  consultations  were 
dispersed  across  the  websites  of  different  ministries,  however  the  relevant  decision  has  not 
been adopted yet169. The platform, which is announced to progressively include strategies and 
other initiatives in addition to draft legislation170, will be a positive step towards increasing 
accessibility  and  transparency  of  the  legislative  process.  An  amended  Consultation  Guide, 
addressed to public servants involved in the process of law-making is in the final stage of being 
adopted.  The  amended  draft  Guide  maintains  all  the  guidelines  from  the  previous  Guide, 
adopted in 2016, and adds new guidance on the use of the platform, which becomes the main 
tool for publication and communication171. While the guidance is comprehensive, it has so far 

164  2022 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, p. 14. 
165 Council of Europe, Platform to promote the protection of journalism and safety of journalists. 
166  2023 Media Pluralism Monitor, country report for Cyprus p. 12-13. 
167  See  Section  I  of  the  Report. The  Supreme  Constitutional  Court  can  hear  cases,  notably  from  the  civil  and 
criminal  courts,  via  a  system  of  leave  to  appeal  by  referral  from  an  ordinary  court  of  “questions  of 
constitutionality  which  are  essential  to  the  determination  of  the  case  pending  before  it”  (Article  9  (a) 
Administration  of  Justice  (Miscellaneous  Provisions)  Law.  Before  the  re-establishment  of  the  Supreme 
Constitutional Court, the Supreme Court heard unconstitutionality claims. See also 2021, 2022 Rule of Law 
Reports, Country Chapter on the rule of law situation in Cyprus, p. 11, 14 and 11. 

168  2022 Rule of Law Report, Chapter on the rule of law situation in Cyprus, p. 2. 
169  Written contribution from Ministry of Finance in the context of the country visit in Cyprus, p. 1.  
170  Ibid. 
171  Ministry of Finance (2016), Consultation Guide. 

20 

 
                                                           
not proven to be sufficient to allow for a systematic and timely consultation of stakeholders172. 
Public  consultations  are  still  not  compulsory173  and  the  competent  service  maintains  its 
discretion  to  decide  whether  to  proceed  with  a  public  consultation  or  to  opt  for  a  targeted 
consultation,  thus  only  engaging  with  specific  groups,  as  the  draft  Guide  does  not  include 
criteria in this respect. The planned reform of the legislative process and the implementation 
of  the  e-legislation  project  is  expected  to  address  this  concern  in  the  near  future,  as  public 
consultation should become a required step174. Stakeholders have also highlighted the need to 
be involved at an earlier stage before a draft law is discussed in Parliament175. The planned 
development  of  the  electronic  platform  of  the  NGO  Registry  to  include  targeted  alerts  on 
forthcoming consultations may be of help, but its implementation requires time176. In addition, 
challenges remain regarding the absence of any obligation for the competent services to provide 
feedback to participants on how their input has helped shape regulatory proposals177. Against 
this background, some progress was achieved on the implementation of the recommendation 
made in the 2022 Rule of Law Report. 

Plans aiming at digitalising the law-making process are expected to improve the quality 
of and access to legislation. OECD indicators on regulatory governance and policy are well 
below the EU average, including in relation to conducting regulatory impact assessments178. 
The quality of law-making  and frequent  changes in  legislation remain a  reason for concern 
about  the  effectiveness  of  investment  protection  among  companies  in  Cyprus  (36%,  same 
percentage  as  in  2022)179.  Under  the  National  Recovery  and  Resilience  Plan,  Cyprus  is 
undertaking a major  reform of its legislative process180. This  includes digitalisation  and the 
creation of a legislation preparation platform (e-legislation platform), enabling easier drafting, 
consolidation,  management  and  storing  of  laws  and  regulations  accessible  to  citizens  and 

172  Shortcomings  in  the  consultation  process  have  been  systematically  identified  in  the  Rule  of  Law  Reports 
(2020, 2021, 2022 Rule of Law Reports, Country Chapter on the rule of law situation in Cyprus, pp. 10, 11, 
15) and by the OECD (Indicators of Regulatory Policy and Governance – Cyprus, 2019, 2022).  

173  The Guide only provides categories of draft legislation which are excluded from consultation, including draft 
laws on the annual budget and the State’s finances; the Criminal Code; adoption of emergency measures, 2023 
Consultation Guide, pp. 6-7. 

174  Input from Cyprus for the 2023 Rule of Law Report p. 22. See below for more details on e-legislation. 
175  Information  received  from  Cyprus  Integrity  Forum,  Oxygono,  OPEK,  Step  up  Stop  Slavery,  KISA,  NGO 
Support Centre and Civil Society Advocates in the context of the country visit in Cyprus; (OECD, Indicators 
of Regulatory Policy and Governance – Cyprus, 2019, 2022); The Ombudsperson also pointed to the need for 
consultations of CSOs to start from the initial stages of decision-making process, be continuous and not limited 
to  when  the  draft  is  already  prepared  and  discussed  in  Parliament  (The  Office  of  the  Commissioner  for 
Administration and the Protection of Human Rights, Impact of 2022 ENNHRI rule of law reporting, p. 16.  

176  Input from Cyprus for the 2023 Rule of Law Report p. 29. 
177  OECD has constantly highlighted the importance of responding to participants’ comments (OECD, Indicators 
of Regulatory Policy and Governance – Cyprus, 2019, 2022). CSOs also pointed to the importance of receiving 
feedback from their participation (Information received from Cyprus Integrity Forum, Oxygono, OPEK, Step 
up Stop Slavery, KISA, NGO Support Centre and Civil Society Advocates in the context of the country visit 
in  Cyprus).  See  also  EU  Agency  for  Fundamental  Rights  (2023),  Country  research  –  An  update  on 
developments regarding civic space in the EU and an overview of the possibilities for human rights defenders 
to enter EU territory– Cyprus, p. 5. 

178  The other two indicators concern stakeholder engagement in developing regulations and ex post evaluation of 
regulation (OECD (2019) (2022), Indicators of Regulatory Policy and Governance – Cyprus); See also, 2020 
Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, p. 10. 

179  Figure 54, 2023 EU Justice Scoreboard.  
180  Investment C3.412 concerns the digitalisation of the law-making process and is expected to be completed by 
31 December 2025, Annex to the Council Implementing Decision on the approval of the assessment of the 
Recovery and Resilience Plan for Cyprus, p. 99. 

21 

 
                                                           
businesses. The public procurement and the award of the contract for the development of the 
platform are scheduled to be completed by the end of 2023181. 

The reinforcement of the regulatory framework has strengthened the Ombudsperson as 
a National Human Rights Institution and resulted in its upgrading to an A-status National 
Human Rights Institution. The implementation of a number of recommendations addressed 
by  the  Sub-Committee  on  Accreditation  (SCA)  aiming  to  strengthen  the  office  of  the 
Ombudsperson,  resulted  in  an  upgrading  to  A-status,  in  October  2022182.  In  particular,  the 
Ombudsperson established a Human Rights Advisory Committee, comprising various human 
rights  stakeholders,  including  representatives  of  civil  society183.  The  procedure  for  the 
appointment of the Ombudsperson was formalised184, while re-appointment has been limited 
to one additional term185. The Ombudsperson manages its allocated budget, but still considers 
that its Office needs additional funding to allow recruitment of staff at senior level, given its 
broad mandate186. According to the Ombudsperson, compliance with its recommendations has 
increased in recent years187. However, while public authorities fully comply with its decisions 
issued under its mandate as Equality Body, they appear to be less responsive when systemic 
problems are involved188. 

On 1 January 2023, Cyprus had 9 leading judgments of the European Court of Human 
Rights pending implementation, a decrease of one compared to the previous year189. At 
that time, Cyprus’ rate of leading judgments from the past 10 years that remained pending was 
at 59% (compared to 71% in 2022) and the average time that the judgments had been pending 

181  Information received from the Ministry of Finance in the context of the country visit in Cyprus.  
182  Global Alliance of Human Rights Institutions, Sub-Committee on Accreditation (SCA), Report, October 2022, 

pp. 14-15. 

183  Ibid. The SCA further recommended the Ombudsperson to continue to enhance and  formalize its  working 
relationships and cooperation with a wide range of civil society organizations and human rights defenders, 
including those working on the rights of vulnerable groups. 

184  Following a public call for expression of interest, the Government recommends the most suitable candidate to 
the President. Before being appointed by the President, the candidate needs to be approved by Parliament. 
Council of Ministers (2022), Decision No 93.298. The Office of the Commissioner for Administration and the 
Protection of Human Rights, Impact of 2022 ENNHRI rule of law reporting, p. 13. 

185  The Ombudsperson can serve a maximum of two six-year terms. Law 127(I)/2022 amending the Laws on the 

Commissioner of Administration.  

186  Including  being  the  Equality  Body,  in  charge  of  combating  discrimination  and  promoting  equality,  the 
National  Preventive  Mechanism  under  the  Optional  Protocol  to  the  Convention  against  Torture  and  Other 
Cruel, Inhuman or Degrading Treatment or Punishment (OPCAT), the National Monitoring Mechanism under 
the Convention on the Rights of Persons with Disabilities (CRPD) and the Mechanism for the Monitoring of 
the  Procedures  of  Forced  Returns  of  third-country  Nationals.  The  Office  of  the  Commissioner  for 
Administration and the Protection of Human Rights, Impact of 2022 ENNHRI rule of law reporting, p. 12. 
187  The compliance rate for cases where the Ombudsperson intervened without submitting a Report is 86% for 
2022 (87% for 2021 and 51% for 2020), while it is 53% for cases where a report was submitted and ex officio 
interventions  (81%  in  2021  and  42  in  2020).  Input  from  Cyprus  for  the  2023  Rule  of  Law  Report,  p.  60; 
Ombudsperson, Annual Report 2020, pp. 37-38; Information received from the Ombudsperson in the context 
of the country visit to Cyprus. 

188  Compliance  is  more  difficult  when  recommendations  may  impact  upon  the  budget  or  relate  to  politically 
sensitive issues. Information received from the Ombudsperson in the context of the country visit to Cyprus.  
189 The  adoption  of  necessary  execution  measures  for  a judgment  by  the  European  Court  of  Human  Rights  is 
supervised by the Committee of Ministers of the Council of Europe. It is the Committee’s practice to group 
cases against a State requiring similar execution measures, particularly general measures, and examine them 
jointly. The first case in the group is designated as the leading case as regards the supervision of the general 
measures and repetitive cases within the group can be closed when it is assessed that all possible individual 
measures needed to provide redress to the applicant have been taken. 

22 

 
                                                           
implementation was 3 year and 3 months (compared to 2 years and 7 months in 2022)190. The 
oldest leading judgment, pending implementation for 9 years, concerns the lack of a remedy 
with automatic suspensive effect in deportation proceedings and the absence of timely review 
of the lawfulness of detention191. On 15 June 2023, the number of leading judgments pending 
implementation remains nine192.  

Administrative and financial burdens raise concerns regarding the environment for civil 
society. The civic space has been downgraded from open to  narrowed193  due to  difficulties 
which civil society organisations (CSOs) are facing to secure funding194 and the ongoing legal 
proceedings instituted by a CSO which was removed from the registry of associations in 2020 
and since then is operating under significant restrictions195. The implementation of the Law on 
Associations  and  Foundations  continues  to  raise  concerns,  in  particular  as  regards  the 
registration of CSOs196. CSOs criticise the lack of clear guidance197, the frequent changes in 
the  practices  followed,  the  different  standards  applied  in  the  different  districts198,  the  long 
delays and the lack of sufficient human resources dealing with the processing of registration 
files199.  As  a  result,  the  non-registered  CSOs  were  not  eligible  to  respond  to  calls  for 
participation  in  advisory  and  coordination  groups  set  by  the  Ministry  of  Interior200. 
Furthermore, following up on deficiencies identified by the Council of Europe during Cyprus’ 
evaluation on anti-money laundering and counter-terrorist financing measures, the Ministry of 
Interior carried out a risk assessment of non-profit organisations with the view to identify those 
at high-risk201. The administrative requirements of this monitoring exercise, which lasted from 
May 2022 to February 2023, did not always find a right balance between targeted protection 
from  money  laundering  abuse  and  proportionality  of  the  measures  and  had  unintended 

190  All  figures  are  calculated  by  the  European  Implementation  Network  and  based  on  the  number  of  cases 
considered  pending  at  the  annual  cut-off  date  of  1  January  2023.  See  the  Contribution  from  the  European 
Implementation Network for the 2023 Rule of Law Report, p. 2. 

191  Judgment  of  the  European  Court  of  Human  Rights  of  23  July  2013,  M.A.  v.  Cyprus,  41872/10,  pending 
implementation since 2013. Cypriot authorities notified the Committee of Ministers of the Council of Europe 
on measures taken by Cyprus for the execution of the judgment as of September 2021. The decision of the 
Committee of Ministers of the Council of Europe is still pending. 

192  Data according to the online database of the Council of Europe (HUDOC-EXEC). 
193  Rating by CIVICUS; ratings are on a five-category scale defined as: open, narrowed, obstructed, repressed 

and closed (Civicus (2023), Monitor tracking civic space-Cyprus). 

194  European Civic Forum (2023), Annual Civic Space Report – 2022 Cyprus, p. 7. 
195  Action for Support, Equality and Antiracism (KISA), 2022 Rule of Law Report, Country Chapter on the rule 

of law situation in Cyprus, p. 16; European Civic Forum (2023), Annual Civic Space Report p. 6. 

196  Law on Association and Foundations and other Related Matters of 2017 (104(I)/2017); 2020, 2021 Rule of 
Law Reports, Country Chapter on the rule of law situation in Cyprus, pp. 11-12 and pp. 12-13, respectively; 
European Civic Forum (2023), Annual Civic Space Report pp. 5-6. 

197  CSOs  often  register  as  not  for  profit  companies  under  the  Business  Register,  a  legal  form  which  does  not 
correspond to the needs and profile of civil society organisations (Information received from NGO Support 
Centre and Civil Society Advocates in the context of the country visit to Cyprus).  

198  Registration and other related requests are submitted to the administration of the district where the legal entity 

has its registered office.  

199  Information received from NGO Support Centre and Civil Society Advocates in the context of the country 

visit to Cyprus. 

200  Including  the  ones  registered  as  not-for  profit  companies  in  the  Business  Registry  (EU  Agency  for 
Fundamental Rights (2023), Country research – An update on developments regarding civic space in the EU 
and an overview of the possibilities for human rights defenders to enter EU territory– Cyprus, pp. 4-5). 

201  Following up on the deficiencies identified by the Council of Europe, Committee of Experts on the Evaluation 

of Anti-Money Laundering Measures and the Financing of Terrorism. 

23 

 
                                                           
consequences202. In particular, banks tend to consider all non-profit entities as high risk, with 
the  result  for  CSOs  to  face  additional  administrative  and  financial  burdens,  including  the 
freezing of their assets203. According to the Government, the conclusion of the risk assessment 
exercise has raised banks’ confidence in CSOs provided with certificates by the authorities, as 
they have been assessed and are continuously monitored204. The creation of the NGO platform 
aims to reduce the administrative burden, improve communication and the quality of services 
provided to CSOs. In addition to its function as an electronic registry, the NGO platform will 
also  allow  virtual  interaction  between  the  CSOs  and  the  authorities,  including  electronic 
submission of documents and applications, interaction between the CSOs and access to public 
consultations205. While initially scheduled to become fully operational in August 2022206, its 
implementation  has  been  further  delayed207.  In  January  2023,  the  Citizens  Commissioner 
presented a strategy aiming to promote active civic participation and create a favourable and 
enabling  environment  for  CSOs.  This  strategy  includes  plans  to  adopt  legislation  on  the 
Citizens’ Initiative, which aims to allow citizens to submit requests to the Government to take 
action  in  specific  areas  of  competence,  thus  empowering  their  effective  participation  in  the 
decision-making process208. A similar legislative proposal is, however, already pending before 
Parliament since 2017209. 

202 Council of Europe, Committee of Experts on the Evaluation of  Anti-Money  Laundering Measures and the 

Financing of Terrorism, 2nd Enhanced Follow-up Report, November 2022, paras 22-26. 

203  EU Agency for Fundamental Rights (2023), Country research – An update on developments regarding civic 
space in the EU and an overview of the possibilities for human rights defenders to enter EU territory– Cyprus, 
pp. 3-4; European Civic Forum (2023), Annual Civic Space Report pp. 7-8. 

204  Written contribution received from the Ministry of Interior in the context of the country visit in Cyprus.  
205  Written contribution from Ministry of Interior in the context of the country visit in Cyprus. 
206  2022 Rule of Law p. 16. 
207 During the first stage of implementation, CSOs could start using the platform as a tool for electronic submission 
of documents. The other features will follow. The Ministry of Interior has prepared guidelines and training 
material, including videos, but CSOs have not yet been asked to use the platform (Written contribution from 
Ministry of Interior in the context of the country visit in Cyprus). 

208  Input from Cyprus for the 2023 Rule of Law Report, pp. 63-64. European Civic Forum (2023), Annual Civic 

Space Report pp. 8-9. 

209  The Law on the Citizens Initiative of 2017 was presented to the competent Parliamentary Committee in March 

2017. 

24 

 
                                                           
Annex I: List of sources in alphabetical order* 

* The list of contributions received in the context of the consultation for the 2023 Rule of Law report 
can 
https://commission.europa.eu/publications/2023-rule-law-report-targeted-
stakeholder-consultation_en. 

found 

be 

at 

Audit Office (2022), Annual Report 2021. 

Audit Office (2022), Statement on the Cyprus Investor Citizenship Scheme, 19 October 2022.  

Audit Office (2023), Statement on the Refusal of the Ministry of Defence to provide information, 29 
April 2023. 

Audit Office (2023), Written contribution from the Audit Office in the context of the country visit. 

Centre for Media Pluralism and Media Freedom, Monitoring Media Pluralism in the Digital Era in the 
year 2022 (2023) Country report: Cyprus. 

Centre for the Rule of Law and European Values (CroLev) (2023), Contribution from CroLev for the 
2023 Rule of Law Report.  

Centre for the Rule of Law and European Values (CroLev) (2023), Written contribution from CroLev 
in the context of the country visit.  

Civicus (2023), Monitor tracking civic space – Cyprus,  https://monitor.civicus.org/country/cyprus/. 

Committee on Media Ethics, Contribution from the Committee on Media Ethics in the context of the 
country visit. 

Council of Bars and Law Societies of Europe (CCBE) (2023), Contribution from the Council of Bars 
and Law Societies of Europe for the 2023 Rule of Law Report. 

Council of Europe: Committee of Experts on the Evaluation of Anti-Money Laundering Measures and 
the Financing of Terrorism (2022), 2nd Enhanced Follow-up Report. 

Council  of  Europe:  Committee  of  Ministers  (2000),  Recommendation  CM/Rec(2000)19  of  the 
Committee of Ministers of the Council of Europe on the role of public prosecution in the criminal justice 
system. 

Council  of  Europe:  Committee  of  Ministers  (2010),  Recommendation  CM/Rec(2010)12  of  the 
Committee of Ministers to member states on judges: independence, efficiency and responsibilities. 

Council of Europe: Platform to promote the protection of journalism and safety of journalists. 

Council  of  Europe:  Venice  Commission  (2010),  Report  on  European  Standards  as  regards  the 
independence of the judicial system: Part II- the prosecution service (CDL-AD(2010)040). 

Council of Europe: Venice Commission (2016), Rule of Law Checklist (CDL-AD(2016)017). 

Council  of  Europe:  Venice  Commission  (2018),  Opinion  on  Constitutional  arrangements  and 
separation of powers and the independence of the judiciary and law enforcement (CDL-AD(2018)028-
e). 

Council  of  Europe:  Venice  Commission  (2021),  Opinion  on  three  bills  reforming  the  judiciary  in 
Cyprus (CDL-AD(2021)043). 

Council of the European Union (2021), Council Implementing Decision of 20 July 2021 on the approval 
of the assessment of the recovery and resilience plan for Cyprus with Annex. 

Cypriot Government (2022), Input from Cyprus for the 2022 Rule of Law. 

Cyprus Bar Association (2023), Written contribution from the Cyprus Bar Association in the context of 
the country visit. 

25 

 
Cyprus Mail (2022), New anti-corruption authority unable to work, 16 November 2022, https://cyprus-
mail.com/2022/11/16/new-anti-corruption-authority-unable-to-work/. 

Cyprus Mail (2023), Droushiotis’ corruption claims will be investigated by foreign experts, January 
2023, 
https://cyprus-mail.com/2023/01/02/droushiotis-corruption-claims-will-be-investigated-by-
foreign-experts/. 

Department of Judicial Reform, Supreme Court, Written contribution from the Cyprus Bar Association 
in the context of the country visit.  

European Civic Forum (2023), Annual Civic Space Report – 2022 Cyprus. 

European Commission (2020), 2020 Rule of Law Report, Country Chapter on the rule of law situation 
in Cyprus. 

European Commission (2021), 2021 Rule of Law Report, Country Chapter on the rule of law situation 
in Cyprus. 

European Commission (2022), 2022 Rule of Law Report, Country Chapter on the rule of law situation 
in Cyprus. 

European Commission (2022), EU Justice Scoreboard. 

European Commission (2023), EU Justice Scoreboard. 

European Court of Human Rights, judgment of 23 July 2013, M.A. v. Cyprus, 41872/10. 

European Federation of Journalists (EFJ) (2023), Contribution from the EFJ for the Rule of Law Report.  

European Implementation Network (2023), Contribution from the European Implementation Network 
for the 2023 Rule of Law Report. 

European Network of National Human Rights Institutions (2023), Cyprus, Office of the Commissioner 
for Administration and the Protection of Human Rights (2023), Impact of 2022 ENNHRI rule of law 
reporting. 

European Parliament: Flash Eurobarometer: News & Media Survey 2022. 

European Public Prosecutor’s Office (2023), Annual report 2022. 

EU  Contact  Committee  statement  (CC  1/2021)  in  support  of  the  constitutional  role,  mandate  and 
independence of the Audit Office of the Republic of Cyprus (May 2021) 

Franet, University of Nicosia and Symfiliosi (2023), Country research - Legal environment and space 
of  civil  society  organisations  in  supporting  fundamental  rights  –  Cyprus,  Vienna,  EU  Agency  for 
Fundamental Rights https://fra.europa.eu/en/country-data/2023/civic-space-report-2023. 

Financial  Mirror 
https://www.financialmirror.com/2022/09/19/claims-of-conspiracy-in-prisongate/. 

(2022),  Claims  of  conspiracy 

in  Prisongate,  19  September  2022, 

Financial  Mirror  (2023),  26  law  firms  audited  in  golden  passport  probe,  10  March  2023, 
https://www.financialmirror.com/2023/03/10/26-law-firms-audited-in-golden-passport-probe/. 

Global Alliance of Human Rights Institutions (2022), Report and Recommendations of the Session of 
the Sub-Committee on Accreditation (SCA), Geneva, 3-7 October 2022 

GRECO (2016), Fourth Evaluation Round, Evaluation Report on Cyprus on Corruption prevention in 
respect of members of parliament, judges and prosecutors. 

GRECO (2018), Fourth Evaluation Round - Compliance Report Cyprus. 

GRECO (2020), Fourth Evaluation Round - Second Compliance Report Cyprus. 

GRECO (2022), Fourth Evaluation Round Addendum to the Second Compliance Report on Cyprus. 

26 

 
Information  Commissioner  (2023),  Written  contribution  from  the  Information  Commissioner  in  the 
context of the country visit. 

In-cyprus (2022), Law allows Transparency Commissioner to make public interventions,  1 November 
2022, 
https://in-cyprus.philenews.com/news/local/law-allows-transparency-commissioner-to-make-
public-interventions/. 

International Organization of Supreme Audit Institutions (INTOSAI) (2021), Statement by the INTOSAI 
development initiative following the potential independence challenges faced by the audit office of the 
republic  of  Cyprus,  24  February  2021,  https://idi.no/elibrary/independent-sais/1182-idi-statement-
cyprus-24-02-2021/file. 

Kathimerini  Cyprus  (2023),  Cyprus  Land  Development  received  11.1  million  from  the  passport 
program,  15  February  2023,  https://knews.kathimerini.com.cy/en/news/cyprus-land-development-
received-11-1-million-from-the-passport-
program#:~:text=The%20Cyprus%20Investment%20Program%2C%20also,Corporation%20between
%202019%20and%202022. 

Ministry of Finance (2023), Written contribution from Ministry of Finance in the context of the country 
visit. 

Ministry of Interior (2023), Written contribution received from the Ministry of Interior in the context of 
the country visit. 

Ministry of Justice and Public Order (2023), Written contribution from the Ministry of Justice in the 
context of the country visit. 

OECD (2020), Indicators of Regulatory Policy and Governance, Europe 2019-Greece.  

OECD (2023), Indicators of Regulatory Policy and Governance, Europe 2022-Greece.  

Office of the Commissioner for Administration and the Protection of Human Rights (2023), Impact of 
2022 ENNHRI rule of law reporting. 

Organised Crime and Corruption Reporting Project (Cyprus) (2023), Written contribution from OCCRP 
(Cyprus) for the 2023 Rule of Law Report. 

Oxygono (2023), Contribution from Oxygono for the 2023 Rule of Law Report. 

Oxygono (2023), Written contribution from Oxygono in the context of the country visit. 

Reporters  Without  Borders  (2023),  2023  World  Press  Freedom  Index.Supreme  Court  (2023), 
Contribution from the Supreme Court for the 2023 Rule of Law Report.  

Schengen Visa Info (2023),  Cyprus  Has Revoked 222 Passports Granted Through Golden Passport 
Scheme So Far, 19 January 2023, https://www.schengenvisainfo.com/news/cyprus-has-revoked-222-
passports-granted-through-golden-passport-scheme-so-far/ 

Supreme Court (2023), Written contribution from the Supreme Court in the context of the country visit.  

UN Human Rights Regional Office for Europe (OHCHR) (2023), Contribution from OHCHR for the 
2023 Rule of Law Report. 

Union of Cypriot Journalists, Written contribution from the Union of Cypriot Journalists in the context 
of the country visit. 

27 

 
 
 
 
Annex II: Country visit to Cyprus 

The Commission services held virtual meetings in April 2023 with: 

Independent Anti-Corruption Authority 
Institute for Mass Media (IMME) 

  Association of European Journalists  
  Association of Judges 
  Audit Office 
  Centre for the Rule of Law and European Values (CroLev) 
  Civil Society Advocates 
  Commissioner for Administration and the Protection of Human Rights 
  Commissioner for Information 
  Committee of Media Ethics Cyprus 
  Cyprus Bar Association 
  Cyprus Broadcasting Corporation 
  Cyprus Judicial Training School 
  Cyprus Integrity Forum 
  Department of Judicial Reform, Supreme Court 
  House of Representatives 
 
 
  KISA 
  Ministry of Finance 
  Ministry of Interior 
  Ministry of Justice and Public Order 
  NGO Support Centre 
  Organized Crime and Corruption Reporting Project (OCCRP) 
  Office of the Attorney General 
  OPEK 
  Oxygono 
  Police - Internal Affairs Service 
  Police - Office of Investigation of Financial Crimes 
  Radio-Television Authority 
  Step up Stop Slavery 
  Supreme Court 
  Union of Cyprus Journalists (ESK) 

* The Commission also met the following organisations in a number of horizontal meetings:  

  ALDA (European Association for Local Democracy) 
  Amnesty International  
  Civil Liberties Union for Europe  
  Civil Society Europe 
  Culture Action Europe  
  European Centre for Press and Media Freedom  
  European Civic Forum  

28 

 
 
ILGA Europe  
International Commission of Jurists 
International Federation for Human Rights (FIDH)  
International Planned Parenthood Federation European Network 
International Press Institute  

  European Federation of Journalists  
  European Partnership for Democracy  
  European Youth Forum  
  Free Press Unlimited 
  Front Line Defenders 
 
 
 
 
 
  JEF Europe  
  Osservatorio Balcani e Caucaso Transeuropa 
  Philea  
  Reporters Without Borders  
  SOLIDAR 
  Transparency International EU 

29