The following is based on a communication sent by the UN Special Rapporteur on Human Rights Defenders and other UN experts to the Government of Kazakhstan on 25 September 2025. The communication remained confidential for 60 days before being made public, giving the Government time to reply. The Government replied on 24 November 2025, and their response is currently being translated.
Since the communication was sent, there has been no improvement in the availability of effective remedies for human rights defenders in Kazakhstan. The situation of LGBTIQ rights defenders has deteriorated alarmingly. A draft law to ban so-called “LGBT propaganda” is currently before Parliament and, if adopted, would entrench stigma and further undermine human rights work. Gatherings organised by LGBTIQ human rights defenders continue to be disrupted by provocateurs, with no accountability for those responsible. Several LGBTIQ activists were arrested in late November 2025 on questionable grounds and have since been released. Among them was Ms. Zhanar Sekerbayeva, who now faces criminal charges of battery, based on a provocateur’s complaint and reportedly unfounded and aimed at intimidating her. On 26 November 2025, her planned TEDxKIMEP presentation was cancelled at the last minute, underscoring the growing pressure she faces.
This is a shorter version of the original communication.
BACKGROUND
Topic: the alleged lack of effective remedies available to human rights defenders in Kazakhstan, including reports that the creation of a national protection mechanism – an important safeguard enabling access to such remedies – has been opposed by the authorities. Additional concerns were raised regarding human rights defenders working on the rights of women and LGBTIQ persons, including Ms. Gulzada Serzhan and Ms. Zhanar Sekerbayeva, who have faced intimidation, obstruction, legal and administrative harassment, and a lack of accountability for violations committed against them.
Ms. Gulzada Serzhan and Ms. Zhanar Sekerbayeva are women human rights defenders, founders of Feminita Kazakhstan Feminist Initiative (Feminita), a queer grassroots initiative formed to monitor, document, and challenge discrimination and hate crimes based on sexual orientation and gender identity, including by means of strategic litigation, media campaigns, and advocacy for the rights of lesbian, bisexual, trans, intersex, and queer (LBTIQ) women in Kazakhstan.
We previously wrote to the Government of Kazakhstan on 25 October 2019 (AL KAZ 4/2019) regarding the restrictions on the registration of Feminita as a legal entity, as well as the violations of the rights to freedom of expression and peaceful assembly of its members, including Ms. Gulzada Serzhan and Ms. Zhanar Sekerbayeva. We also wrote on 15 July 2021 (AL KAZ 4/2021) regarding the harassment, intimidation, and arbitrary detention of Ms. Gulzada Serzhan and Ms. Zhanar Sekerbayeva. We are grateful for the Government’s responses dated 23 December 2019, 22 May 2020, and 10 September 2021, and in particular for the affirmation of Kazakhstan’s firm commitment to non-discrimination. However, we remain concerned after receiving the information outlined below.
ALLEGATIONS
General situation of human rights defenders
According to the information received, there are currently no effective national legal remedies available for human rights defenders in Kazakhstan.
On 1 September 2021, in his Address to the Nation, the President of Kazakhstan included the protection of human rights defenders as part of the country’s strategic agenda, stating: “In defending citizens’ rights, we must not forget the rights of human rights defenders, including lawyers. The safety of their activities must be ensured, and unlawful actions obstructing their work must be prevented.”
Subsequently, paragraph 23 of the Plan of Further Measures in the Area of Human Rights and the Rule of Law, approved by Government Decree No. 258 of 28 April 2022, envisaged the establishment of a working group on the protection of human rights defenders. The working group was formally established in September 2022 by order of the Human Rights Commissioner (Ombudsman). It included representatives of both governmental bodies and non-governmental organisations working in the field of human rights. Its mandate includes the review of complaints and appeals from human rights defenders, discussion of information provided by law enforcement agencies, and the development of practical recommendations and proposals for improving national legislation. According to the information received, one of the central topics discussed by the working group was the adoption of a national law on the protection of human rights defenders.
However, it has been reported that the working group has not been convened by the Ombudsman since July 2023, despite repeated requests from civil society representatives.
As regards the adoption of such a law, a letter dated 5 September 2024 from the National Centre for Human Rights (the government body supporting the work of the Ombudsman), addressed to one of the non-governmental organisations participating in the working group, states: “In 2022-2023, the issue was discussed on several occasions by the working group. Unfortunately, at that time, it did not receive support from the relevant state bodies.” It further states that further consideration will resume “when state bodies may be inclined to support or at least not oppose the initiative.”
Similarly, during a recorded meeting of the Advisory Council on Democracy and Human Rights under the Ministry of Foreign Affairs held on 19 March 2025, the Special Envoy of the Ministry, who chaired the session, stated: “A working group was established… the matter [of adopting a national mechanism to protect human rights defenders] was discussed but unfortunately did not gain support.” The Special Envoy also stated that work on the protection of human rights defenders is already being carried out within the framework of the International Covenant on Civil and Political Rights. However, she expressed a narrow interpretation of the term “human rights defenders”, referring primarily to lawyers and legal advisors, whose interests, in her view, are already represented by professional associations governed by national legislation.
Human rights defenders working on the rights of women and LGBTIQ persons
Non-investigation of previous incidents
According to newly provided information, the harassment, intimidation, and arbitrary detention of Ms. Gulzada Serzhan and Ms. Zhanar Sekerbayeva in Shymkent, as described in communication dated 15 July 2021, have not been effectively investigated despite the evidence allegedly provided by Feminita. The case appears to have been closed and archived without due accountability.
Attempted vehicle assault
On 29 July 2023, a man later identified as [name redacted] allegedly used his vehicle in an attempt to intimidate Ms. Zhanar Sekerbayeva while she was crossing the pedestrian crossing on Timiryazev Street in Almaty at approximately 8:00 p.m. It is reported that he drove onto the pedestrian crossing and stopped abruptly in very close proximity to her, prompting her to jump out of the way while still on the crossing.
Ms. Sekerbayeva reportedly told the driver that one cannot drive over a pedestrian crossing and endanger people, to which the man allegedly responded that he had done so deliberately, claiming to have recognised her as a lesbian activist. He allegedly shouted verbal abuse at her, including phrases such as “you are not a woman”, “BDSM freak”, “you are worse than paedophiles”, and “shut your mouth”. He reportedly threatened to beat her, raised his hand several times, and acted in a physically threatening manner.
According to information received, Ms. Sekerbayeva called the police, who arrived at the scene within 20 minutes. During the interaction with police, the man reportedly justified his actions using her identity, told officers about his family and children, and expressed openly hostile views towards LGBTIQ people. He also reportedly began recording her on video and threatened to publish the footage online. The police officers present allegedly did not intervene to stop him from doing so.
Later the same day, Ms. Sekerbayeva filed a formal complaint against the man at Bostandyk District Police Department. However, according to information received, no measures were taken to hold him accountable.
Disruption of an event on environment and LGBTIQ rights
On 7-10 October 2024, activists from Feminita held an event in Almaty, informally called “lesbian kurultay” (traditional Kazakh assembly to make important decisions) and focused on the theme “Environment and its impact on the LGBTIQ community: how we experience crises and envision our future”.
Prior to the event, the organisers reportedly received last-minute refusals from four hotels and one co-working space. According to information received, a representative of one venue privately admitted that the refusal was due to instructions from local authorities. Eventually, a venue was secured, but the electricity in the premises was reportedly cut off during the event.
On 9 October, anti-LGBT activists came to the venue and attempted to disrupt the event. They tried to force the door open, shouted insults at participants, physically pushed and grabbed attendees, and filmed them without consent. According to information received, the disruptive individuals also called the police, alleging that minors were present at the event, a claim that was not substantiated.
Representatives of Feminita called the police and requested the removal of the individuals disturbing the event. When officers arrived, they reportedly detained two of the attackers. However, Ms. Gulzada Serzhan and Ms. Zhanar Sekerbayeva, as well as one more activist and several foreign attendees, were also detained. The Feminita activists were reportedly held at Almalinsky District Police Department for approximately one and a half hours.
Whilst at the police station, they submitted a formal complaint describing the incident, but according to information received, no criminal case was opened, and no effective investigation was conducted.
Furthermore, officers who arrived at the event reportedly photographed the identification documents of all women present, without providing any legal justification for doing so.
On the following day, 10 October, the same anti-LGBT activists allegedly arrived at a different venue for the same event. When asked to leave, they reportedly refused and filmed everything on their mobile phones.
Since none of the venues were publicly disclosed, it is alleged that surveillance has been used either by anti-LGBT activists or by law enforcement who may have passed the location information to the activists.
Request for recognition as an extremist organisation
On 9 October 2024, a member of the Kazakhstani Parliament [name redacted] submitted a parliamentary request to the Prosecutor General and other authorities, calling for Feminita to be recognised as an extremist organisation and for its activities to be banned within the country. Although the request was ultimately denied as groundless, it received extensive media coverage.
Disruption of a human rights education event
A human rights education event for LGBTIQ women was held on 13-16 February 2025 at a hotel conference room in Almaty.
On 13 February 2025, around 11:00 a.m., a group of approximately six women entered the venue during a presentation. According to information received, they were live streaming on social media, verbally insulting organisers and participants. Allegedly, they falsely accused attendees of child molestation and claimed the event was an orgy taking place in a school setting. The individuals approached participants at close range with their cameras, shouted, and reportedly attempted to provoke physical confrontation. The same group allegedly called the police.
Approximately eight police officers arrived shortly thereafter. According to the information received, event participants were required to write explanatory statements, and officers photographed their identity documents. Ms. Gulzada Serzhan and Ms. Zhanar Sekerbayeva were then arrested without being informed of the grounds for their arrest.
Ms. Serzhan and Ms. Sekerbayeva were taken to Medeu District Police Department. They believed the police were investigating the incident, as the attackers were also present at the same police station. However, while the attackers waited in the hall, Ms. Serzhan and Ms. Sekerbayeva were held in a locked room with bars. After approximately one hour, both were transferred separately in different police vehicles to Bostandyk District Police Department. Ms. Sekerbayeva was allegedly subjected to intimidation during transport, including humiliating questions of a sexual nature. Both defenders were released approximately three and a half hours after their arrest. Upon return, they resumed the event, although significant time had been lost.
The next day, on 14 February 2025, the event resumed at the same venue but was again disrupted by a different group of approximately five women. According to information received, two individuals reportedly pushed aside the hotel administrator who had refused to open the door to the event room. They attempted to force the door open by hitting it, while others continued to live-stream. Loud music was played and participants were insulted, including with the phrase “foreign agents, come out!”. Ms. Sekerbayeva was reportedly injured while trying to hold the door closed.
The incident was allegedly retraumatising for many participants, a number of whom were survivors of gender-based violence. At least two individuals reportedly experienced panic attacks requiring medication, and one participant, who had recently undergone heart surgery, allegedly fainted as a result of the stress.
Approximately eight police officers (different from those of the previous day) arrived at the request of the alleged attackers. Again, they photographed participants’ identity documents and collected written statements from all present.
According to the information received, these disruptions have not been effectively investigated. No individuals involved in the alleged attacks have been held accountable, and damages to the hotel property have reportedly not been compensated. The attackers are allegedly the same individuals who disrupted the “lesbian kurultay” on 7-10 October 2024, and are reportedly affiliated with the government, operating as a government-organised non-governmental organisation that appropriates feminist rhetoric while promoting traditional values.
Fines for operating as an unregistered group, alongside repeated registration refusals
Following the disruption of the human rights education event described above, on 13 February 2025, police filed administrative cases against Ms. Gulzada Serzhan and Ms. Zhanar Sekerbayeva, accusing them of leading Feminita, which is not registered in accordance with national legislation on public associations. On 19 February 2025, the Specialised Inter-District Administrative Court of Almaty found Ms. Serzhan guilty of violating part 9 of article 489 of the Code of Administrative Offences (“leading public associations not registered in accordance with legal requirements”). She was fined KZT 393 200 (approximately EUR 625). According to the information received, the evidence against her allegedly included a statement she gave while in detention, under the impression that it was being collected in connection with the investigation into the disruption of the event. On 21 February 2025, the same court also found Ms. Sekerbayeva guilty under the same article and imposed the same fine. She was allegedly not given access to the case materials prior to the hearing. Appeals filed by the defence were dismissed by the Almaty City Court on 27 February 2025 and 11 March 2025.
Importantly, there have allegedly been at least 15 attempts to establish and register the Public Foundation “Feminita” since 2017. However, the Department of Justice in Almaty has consistently rejected these applications on various formal grounds.
During the latest attempt, on 8 April 2024, the founders once again submitted the documents for registration. However, by Order No. 826 dated 15 April 2024, the Almaty Department of Justice refused registration on a single ground: that “the foundation’s objectives partially contradict article 4 of the Law of the Republic of Kazakhstan “On Non-Commercial Organisations” – namely, the protection of the rights of women of LGBTIQ communities.” At the same time, article 4 of the Law on Non-Commercial Organisations explicitly includes the protection of the rights and legitimate interests of individuals and organisations as valid objectives. Therefore, the refusal was based specifically on the group whose rights and interests the foundation intended to protect.
Arrest on the eve of International Women’s Day and previous attempts to hold the march
On 28 February 2025, at approximately 3:00 p.m., three law enforcement officials arrested Ms. Sekerbayeva at a gym in Almaty and transported her to Almalinsk Police Department.
At the police department, the authorities accused her of violating part 7 of article 488 of the Code of Administrative Offences (“organising and/or holding a public event in violation of the procedure established by law for organizing and holding peaceful assemblies”). It was alleged that on 13 May 2024, she had organised and participated in a peaceful protest without prior authorisation from municipal authorities.
The protest in question involved six women peacefully demonstrating in Almaty against violence towards women and what they viewed as lenient sentencing of perpetrators. The demonstration was reportedly a public response to an ongoing high-profile case involving the violent killing of his wife by a former government minister.
Later on 28 February 2025, the Specialised Inter-District Administrative Court of Almaty sentenced Ms. Sekerbayeva to ten days of administrative detention, effective until 10 March 2025. The decision was upheld by the Almaty City Court on 5 March 2025. This was reportedly a preventive measure aimed at stopping her from organising or participating in any peaceful protest on International Women’s Day, 8 March 2025.
Notably, nearly a year passed between the alleged offence and the imposition of the sentence. In contrast, Ms. Gulzada Serzhan was fined KZT 184 600 (approximately EUR 294) by the same court for the same alleged offence on 15 May 2024, a decision that was upheld by the Almaty City Court on 6 June 2024.
Attempts to hold peaceful assemblies dedicated to commemorating International Women’s Day bring together various women’ rights initiatives and movements in Kazakhstan. According to available information, between 2017 and 2025, the Almaty city administration has only once (in 2021) authorised a march for women’s rights timed to celebrate 8 March. In 2022 and 2023, activists managed to obtain permission to hold a rally as an alternative. Among the reasons given by the authorities for their refusal were the unavailability of public venues due to other events, renovation work, a “threat to public order”, and the alleged “promotion of alien values, such as same-sex relationships, marriages, LGBTIQ symbols and others, under the guise of fighting for women’s rights”. However, even in 2021 and 2023, activists faced harassment and threats related to the organisation of assemblies. In 2021, participants were threatened with criminal prosecution, and students were threatened with expulsion from universities for participating. In 2023, threats and provocations took place both during and after the rally.
CONCERNS
In the communication, we express concern about the reported lack of effective national remedies available to human rights defenders.
While we welcome the President’s public commitment in 2021 to ensuring safety and the non-obstruction of human rights defenders, along with the subsequent measures referenced in this communication, these steps appear insufficient to establish the necessary conditions for a genuinely enabling environment, particularly in light of the alleged lack of progress and the other serious allegations outlined in this communication. We also note with regret the reported opposition by government bodies to the establishment of a national protection mechanism. We are concerned that this may, in part, stem from a limited understanding of the concept of “human rights defenders” among the relevant government authorities.
We would also like to express our deep concern over the use of rhetoric such as “promotion of alien values” and “extremist activity” directed at human rights defenders engaged in vital and legitimate work to advance the rights of women and LGBTIQ persons.
We would like to express our concern regarding the ongoing restrictions placed on these defenders, as demonstrated by the government’s response to their long-standing efforts to organise peaceful assemblies on women’s rights and register an organisation dedicated to protecting the rights of the LGBTIQ community. We further note with concern more recent reports of defenders repeatedly being denied venues for human rights events, due to alleged pressure from the authorities on private businesses. We are further concerned by the repeated disruption of human rights events, alleged surveillance, heavy fines on Ms. Gulzada Serzhan and Ms. Zhanar Sekerbayeva, and what appear to be arbitrary arrests and detention, aimed at preventing them from exercising their rights to peaceful assembly and freedom of expression.
Furthermore, we are concerned about the rise of narratives labelling civil society, human rights activists and protesters as “foreign agents” and agents of “foreign influence”, often basing such allegations on the type of funding that they receive. Such stigmatization further undermines the public trust needed for civil society to be able to do its work.
Even more concerning is the reported lack of effective investigations into incidents of harassment, intimidation, and physical or verbal abuse, and other violations, as well as the persistent failure to hold perpetrators accountable. It is also very concerning that in some cases, law enforcement has reportedly failed to prevent privacy violations against defenders from vulnerable groups and people attending their events or has itself been involved in actions such as photographing identification documents or collecting explanatory statements without clear legal basis.
We are deeply concerned about the chilling effect this situation is creating, as well as the risk of further escalation – including the potential for physical violence – fostered by a climate of impunity, hostile rhetoric from government officials and politicians, and hate speech online showing the faces of human rights defenders and participants in their events. The seriousness of these risks is underscored by the attempted car assault referenced in the allegations above.
