* Category includes ratification, accession, or succession to the treaty

Palestine’s temporary Constitution, the Basic Law, was passed by the Palestinian Legislative Council in 1997 and ratified by President Yasser Arafat in 2002. It was amended in 2003 and in 2005. Freedom of association is guaranteed by Article 26(2), which states that all Palestinians have the right, both individually and in groups, “to form and establish unions, associations, societies, clubs and popular institutions in accordance with the law.”

Relevant national legislation includes the following:

• The Law on Charitable Associations and Community Foundations (Law 1 of 2000) [English] [عربي]
• Implementing Regulations for Law 1 of 2000 (Council of Ministers Decision 9 of 2003) [عربي]
• Basic Law of the Palestinian National Authority [عربي]
• Law on Public Assemblies (Law 12 of 1998)
• Regulation on Non-Profit Companies (Regulation 3 of 2010) [عربي]
• Decree-Law No. 9 of 2021regarding the postponement of the elections of trade unions and financial unions
• Decree-Law No. 7 of 2021amending Law No. 1 of 2000 regarding charitable associations and civil society organizations and its amendments
• Decree-Law No. 18 of 2021 suspending enforcement of Decree-Law No. 7

Possible Revisions to Legal Framework for CSOs

The government has periodically sought to revise the legal framework for CSOs through amendments to the Law on Charitable Associations and Community Foundations (Law I of 2000), ministerial directives, and other regulations and policies. Most recently, a 2021 decree introduced several restrictive measures but was suspended after robust pushback from CSOs. The government has indicated that it plans to issue a new decree covering the same matters after consulting with “relevant entities.”

Ministerial Committee on Amending Regulations for Non-Profit Companies

A ministerial committee has been formed under the auspices of the office of the Palestinian Prime Minister tasked with amending the Non-Profit Companies Regulation in Palestine. The committee has not invited any representatives of CSOs to take part in consultations or dialogue.

Draft Law on Anti-Terrorism and Money Laundering

The Palestinian government has drawn up a new restrictive draft law through the Ministry of Interior and the Palestinian Monetary Authority that imposes strict measures related to money laundering and combating support for terrorism.

Palestinian law refers to both “charitable organizations” and “community foundations,” but only formally defines the legal form of “associations.” Under Law No. 1 of 2000, an association is any institution with “independent legal personality, established upon an agreement concluded among no less than seven persons to achieve legitimate objectives of public concern, without aiming at attaining financial profits to be shared among the members or achieving any personal benefits.”

Law No. 1 of 2000 does not define a specific public benefit status. However, all registered associations are exempt from taxes and customs duties.

The legal framework in Palestine offers limited protection for public participation. Although certain laws and decrees include provisions safeguarding the rights of marginalized groups, their implementation remains inadequate. For example, the Palestinian Authority has prevented civil society activists with disabilities from holding sit-ins in front of the Ministry of Health to demand their legally guaranteed right to free health insurance. In addition, the ongoing territorial, legal, and political fragmentation across Palestine continues to hinder the ability of marginalized groups and civil society activists to participate meaningfully in public policy and service delivery.

Registration is mandatory for associations operating in Palestine. According to Law No. 1 of 2000, to register, applicants must submit an application form provided by the Ministry of Interior along with three copies of the association’s bylaws.

However, the Ministry of Interior has repeatedly modified registration requirements. As of 2015, applicants must submit:

• Three copies of the registration form and bylaws
• Copies of the founders’ ID cards (or other proof of nationality)
• Revenue stamps valued at JOD 20 (USD 28 as of September 2025)
• Written authorization allowing three founders to follow up on registration procedures and sign on behalf of the organization
• A letter certifying that the founders’ signatures are authentic, prepared by the three authorized founders
• A completed form with information about the founders
• Signatures of all founders (or the three authorized founders) on every page of the bylaws
• Printed copies of all enclosed documents
• A notarized statement from any founder holding an Israeli ID card accepting the jurisdiction of Palestinian courts for legal matters
• Clearance from the Ministry of Finance and Income Tax Department for all founders
• For foreign organizations, narrative and financial guides must be included with the registration application

The law requires the Ministry to issue a decision on an application within two months. If no decision is issued within that period, the association is considered legally registered by default. In practice, however, the Ministry has sometime refused to recognize associations registered by default, obstructing or preventing them from operating altogether. Associations without an issued registration certificate are also unable to open bank accounts to receive funds.

Rejections must be issued in writing and state the reasons for denial, but the law does not specify permissible grounds for rejection. Reports indicate that the Ministry has, at times, rejected applications on the basis that “other registered associations provide the same services.”

Additional administrative decrees have further complicated registration. The Euro-Mediterranean Human Rights Network noted that Presidential Decree 16 of 2007, Council of Ministers Resolution 8 of 2007, and Ministry of Interior Decision 20 of 2007 collectively expand ministerial oversight and require security agency involvement in the registration process in ways that may conflict with the NGO law. In Gaza, registered associations are subject to security checks and must provide certificates of good conduct and clean criminal records for all members — a requirement that has reportedly also been applied in the West Bank. (Euro-Mediterranean Human Rights Network, Freedom of Association in the Euro-Mediterranean Region 2009, p. 68.)

Palestinian law places few formal limitations on the rights of associations. Organizations are legally free to engage in public policy debates, raise funds from foreign and domestic sources, merge or dissolve, and affiliate with foreign or domestic organizations without prior permission. Foreign associations may establish branches in Palestine with approval from both the Ministry of Interior and the Ministry of Planning and International Cooperation.

However, the government has increasingly sought to exert control over civil society through amendments, regulations, ministerial decisions, and informal practices. The Ministry of Interior retains the authority to “scrutinize the activities of an association to ascertain that its funds have been spent for the purposes for which they were allocated,” a provision that can enable inappropriate government interference in CSO activities. Although associations are entitled by law to set up branches within Palestine, authorities in Gaza have reportedly refused to allow organizations registered in the West Bank to operate—and vice versa.

Israeli Restrictions in East Jerusalem

Restrictive Israeli laws and policies pose significant challenges to Palestinian organizations operating in East Jerusalem. Since 1990, access to East Jerusalem has been severely restricted through checkpoints, the separation barrier, and a permit regime for employees who are not Jerusalem residents. These measures have undermined the ability of Palestinian CSOs to support the Palestinian population and protect their rights in the city.

Additional challenges include the closure of bank accounts by Israeli banks, defamation campaigns by Israeli lobby groups, office raids, and confiscation or destruction of equipment and materials. As a result, many Palestinian CSOs have permanently or temporarily closed their Jerusalem offices. Those that remain face isolation, continuous threats of closure by Israeli authorities, limited access to resources, and high financial costs to continue operating.

Administrative Burdens under the Palestinian Authority

CSOs operating in areas under the control of the Palestinian Authority face an expanding set of restrictive legislative and policy measures that increase administrative burdens. These include more complex registration requirements, financial procedures, and obstacles to opening bank accounts and receiving or transferring funds. Civil society actors report that these requirements divert their limited resources away from service delivery and advocacy.

Control Measures in Gaza

In Gaza, the de facto authority Hamas exercises strict oversight of CSOs. Authorities conduct audits, review staff and beneficiary lists, and introduce new permit requirements and restrictions on activities in certain areas of the Strip.

Decree-Law No. 7 of 2021

In 2021, the government issued Decree-Law No. 7, which required CSOs to align their annual work plans with those of relevant government ministries and capped CSOs’ operating expenses and salaries at 25 percent of their annual budgets. Following civil society advocacy, enforcement of Decree-Law No. 7 was suspended.

Barriers to International Contact

Law No. 1 of 2000 imposes no major legal barriers to international contact. The only notable requirement is that foreign associations must obtain approval from the Ministry of the Interior—after consultation with the Ministry of Planning and International Cooperation—before opening branches in Palestine (Article 34).

On July 7, 2015, the Palestinian Council of Ministers approved new restrictions on funding for non-profit companies. Through amendments to Regulation No. 3 of 2010 on Non-Profit Companies, a new paragraph was added to Article 11 stating: “Acceptance of any gifts, donations, aid, or funding is subject to prior approval from the Council of Ministers after specifying the purpose of such [gifts, donations, aid, or funding].” Many charitable associations and community organizations have established non-profit companies to carry out economic activities that advance social development and support marginalized groups. The new prior-approval requirement thus creates an additional obstacle for these entities in securing financial support.

Associations other than non-profit companies generally remain free to raise funds from foreign and domestic sources without seeking prior approval or notifying the Ministry of Interior.

However, the government maintains significant control over the assets of dissolved organizations. A 2011 amendment to the law grants the Ministry of Interior broad discretion to transfer the funds and assets of a dissolved organization to the public treasury of the Palestinian National Authority. Previously, organizations could specify in their bylaws how their funds and assets should be disposed of upon dissolution. This amendment effectively enables the government to confiscate the resources of dissolved organizations. 

As noted above, in 2021 the government issued Decree-Law No. 7, which—among other restrictions—sought to increase government control over CSO fundraising and the disposition of CSOs’ assets upon dissolution. Enforcement of the decree was suspended following civil society advocacy.

Law No. 1 of 2000 does not impose any legal restrictions on CSOs’ speech or advocacy. In practice, however, freedom of expression has been increasingly curtailed. Since 2019, dozens of Palestinian civil society activists have been arrested or detained for posting opinions critical of the government on social media.

One of the most prominent incidents was the June 2021 arrest of activist Nizar Banat, who had publicly criticized corruption within the Palestinian Authority. He died in police custody in the West Bank, sparking widespread outrage and protests.

Vague Provisions

Law No. 12 of 1998 on Public Assemblies contains several vague provisions regarding permissible assemblies. For example, Article 4 requires demonstrations to be “far from areas of tension, and the purpose of the meeting must not contradict with the law or public order.” The terms “areas of tension” and “public order” are open to interpretation and may be used to deny or restrict the right to peaceful assembly. This vagueness also leaves Palestinians uncertain about whether their gatherings may violate the law.

Advance Notification

The Law on Public Assemblies requires prior written notice for gatherings of more than 50 people in public spaces, including squares, courts, and parks (Articles 3 and 4). Notices must be submitted to the governor or police director at least 48 hours in advance and signed by at least three organizers.

Article 1 of the Executive Regulation stipulates that notices must:

• Be handwritten and addressed to the governor or police director;
• Be submitted at least 48 hours in advance;
• Specify the venue, time, and purpose of the assembly; and
• Define the demonstration’s route and duration.

If no response is received within 48 hours, organizers are legally permitted to hold the assembly on the date specified. Following  receipt of a notice, the police director has authority to issue a license, which must include the organizer’s name, the meeting’s subject, venue, duration, assembly point, security conditions, and any other terms. There is no legal right to challenge a police decision denying a license.

Spontaneous Assemblies and Counter-Demonstrations

The Law on Public Assemblies does not explicitly address spontaneous assemblies or counter-demonstrations. Because of the prior-notification requirement, such assemblies are effectively prohibited and are often suppressed in practice. For example, in June 2012, Palestinian police broke up a spontaneous protest against the visit of Israeli Minister Ehud Barak.

Time, Place, and Manner Restrictions

The Law on Public Assemblies does not explicitly impose restrictions on the timing, location, or subject matter of assemblies.

Police Enforcement

There have been multiple instances of excessive police force against peaceful demonstrations. In March 2011, for example, a peaceful Earh Day demonstration near City Inn Circle in Ramallah was disrupted by security checkpoints, and several participants were detained.

Criminal Penalties

The Law on Public Assemblies provides for penalties for violations. Article 6 calls for imprisonment of up to two months or a fine not exceeding JOD 50,000 (USD 70,500 as of September 2025). By referencing the Penal Code, the law exposes participants to potentially harsher penalties.

In practice, the Palestinian Authority frequently relies on the provisions of the Palestinian Penal Code of 1936, the Jordanian Criminal Code of 1960, and the Presidential Decree on Promoting National Unity and Preventing Incitement to limit peaceful assemblies. These measures, however, were originally intended to address assemblies with criminal intent.

US sanctions Palestinian rights groups (September 2025)
Palestine has denounced US sanctions on three local human rights organisations, calling them “a serious and unacceptable targeting of Palestinian civil society.” In a statement, the Palestinian Justice Ministry said the decision “represents a serious and unacceptable targeting of Palestinian civil society and its human rights and humanitarian organizations, which defend human rights under international laws and norms, and document Israeli occupation violations against our people, our land, and our holy sites.” The ministry urged Washington to reverse the sanctions and called on the international community and the UN “to intervene swiftly to protect the Palestinian people and their institutions.”

Protesters chase EU diplomats from Palestinian Museum (April 2024)
Video posted on social media showed Italian consul general Domenico Bellato hurrying away from the Palestinian Museum near the city of Ramallah followed by a crowd of demonstrators. “The student’s movement refused those visitors to come to the museum because of their position on the genocide in Gaza. For that we asked them to leave,” student representative Omar Kayed told AFP. Elsewhere, Palestinian police were forced to prevent protesters from reaching the Canadian representative office in Ramallah in a rally against that country’s positions over the Gaza war.

Hamas claims it is ‘ready’ to hold first elections in Gaza in 18 years (September 2023)
Gaza’s ruling militant group Hamas has said there is a cross-factional agreement to hold elections in the besieged enclave, which would be the first in 18 years. Speaking to local Palestinian outlet Quds News, Hamas spokesman Hazem Qassem said a meeting was held with Palestine’s Central Elections Committee and the armed factions in the Gaza Strip. “There was a consensus that the atmosphere was very positive in the Gaza Strip and the conditions were completely favourable for holding these elections,” Mr Qassem said.

Seven Palestinian NGOs shut down by Israel (August 2022)

Palestinian NGO Network (PNGO) Hosts Civil Society Conference (February 2022)

PNGO condemns Dutch government decision to end funding for UAWC (January 2022)

Civil society organizations conclude training workshop on legal restrictions (December 2021)

Ministry of Finance amends some provisions of the draft VAT law (December 2021)

PNGO Calls on International Community’s Pressure to Stop Violations against Civil Work Institutions (August 2021)

ICHR Announces its Opposition to Amendment of the Law of Charitable Societies and Civil Organizations (April 2021)

The European Union sets new funding terms and Erekat calls for reconsideration (December 2019)

Agreement on Principles between NGOs and AIDA (March 2018)

With Electricity in Short Supply, 10,000 Protest in Gaza, Defying Hamas (January 2017)

A New Model for the Relationship between the National Authority and Civic Institutions (October 2016)

Training session on the right to organize and to form associations (September 2016)

Human Rights Watch: Palestine – Crackdown on Journalists, Activists (August 2016)

Civil Society Organizations Commission holds a consultative meeting on civil work (January 2016)

Emphasizing civil society’s role to stop confiscation of rights organizations (December 2015)

Prime Minister addresses role of civil society sector (October 2015)

Legal committee to discuss special regulations concerning the law on CSOs (August 2014)

Paving the Way for Women’s Inclusion in Palestinian and Israeli Peacebuilding (August 2014)

Palestine Joins the Convention on Cluster Munitions (September 2013)

Palestinian Civil Society: What Went Wrong? (April 2013)

Banking woes for charity suspected of financing Hamas (January 2013)

Newest ‘observer state’ should act on rights treaties (November 2012)

Statement of the Palestinian Council of Human Rights Organizations (PCHRO) on EU Association Council Meeting (July 2012)

Attacks against journalists in Ramallah violate Palestinian law (July 2012)

Australia dismisses Palestinian NGO ‘terror’ claims (May 2012)

Palestinian hunger strikers’ lives in danger (May 2012)

The earliest Palestinian CSOs formed during the British Mandate and focused primarily on grassroots promotion of the nationalist struggle. After 1948, many organizations were established on behalf of women, students, doctors, and others. Many worked alongside the Palestinian Liberation Organization (PLO) to advance the goal of building a Palestinian state. Because the PLO did not constitute a fully sovereign state, Palestinian CSOs were able to operate freely and secure funding from regional and international donors, including wealthier Arab states and the World Bank.

By 1994, with the creation of the Palestinian National Authority (PNA), these organizations had a long history of providing essential social services and were accustomed to operating in an open environment, unlike the restrictive legal frameworks often imposed on CSOs in neighboring countries such as Egypt and Jordan.

Soon after taking power, however, the PNA attempted to assert heavy-handed control over CSOs, straining relations with civil society. When the PNA drafted a CSO law modeled on restrictive Egyptian law, Palestinian CSOs reacted swiftly. Leveraging their long-standing international connections, CSOs persuaded donor states and international agencies, which provided much of the PNA’s funding, to pressure the PNA to adopt a less restrictive law. After a protracted struggle, CSOs achieved what has been described as “a near total victory.” The law, passed in 2000, became one of the most liberal and least restrictive CSO laws in the Middle East for many years.

Unfortunately, the continuing effects of Israeli occupation, combined with the weakening of Palestinian state institutions, have led to uneven and arbitrary enforcement of the CSO law and a broader decline in the rule of law. The political split between Fatah and Hamas following the 2006 parliamentary elections created a de facto separation between the West Bank and Gaza Strip. Arbitrary punitive measures, including the forced dissolution of CSOs and replacement of their boards, were carried out against Hamas-affiliated CSOs in the West Bank and Fatah-affiliated CSOs in Gaza.

Although Hamas and Fatah signed a reconciliation agreement in April 2014 and formed a unified government, the division between the two sides continued to affect Palestinian CSOs adversely. Combined with ongoing restrictions on civil society activities, this has weakened CSOs’ ability to provide essential services, particularly to marginalized groups.

Since 2014, democratic development in Palestine has slowed. National electoral processes have stalled and progress on democratic accountability and oversight remains limited. The country requires renewed efforts to strengthen democratic institutions and enhance opportunities for citizens and civil society actors to participate meaningfully in public decision-making.