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Uzbekistan

Last updated: April 29, 2026

Recent Developments

While we aim to maintain information that is as current as possible, we realize that situations can rapidly change. If you are aware of any additional information or inaccuracies on this page, please keep us informed; write to ICNL at ngomonitor@icnl.org.

Introduction

Civil society in Uzbekistan began to develop after the country gained independence in 1991, but has since operated under close state oversight. Independent organizations face significant barriers to registration, funding, and advocacy, limiting their role in shaping public policy. Nonetheless, the sector has contributed to service delivery, support for vulnerable groups, and awareness-raising on issues such as gender equality, disability rights, and community development.

The legal framework, rooted in civil law traditions, formally recognizes and protects non-profit non-governmental organizations (NNOs). In practice, however, civic freedoms remain constrained. Although presidential decrees issued since 2016 have slightly eased restrictions on NNOs, registration is still mandatory, and the Ministry of Justice (MoJ) may deny or delay applications. NNOs must also notify the authorities of planned events and coordinate the receipt of foreign funding with the state. Peaceful assembly is subject to advance authorization and heavy administrative penalties, with decrees issued in 2024 further tightening rules on public gatherings. Government-organized NNOs (GONNOs) dominate the sector, while independent human rights and politically-oriented groups face the greatest barriers to operation.

Civic Freedoms at a Glance

Organizational FormsNon-Governmental Noncommercial Organizations (NNOs), which include public associations, public funds, institutions, and associations of NNOs
Registration BodyMinistry of Justice (MoJ)
Approximate NumberAs of April 2026, the online register of NNOs and their branches on the MoJ’s website includes 12,576 registered NNOs, including 5,383 branches and representative offices.
Barriers to Formation(1) Mandatory registration, with activities of unregistered groups prohibited; (2) burdensome documentation requirements; (3) vague grounds for denial of registration; (4) at the discretion of registration authorities, applications may be sent for “expert evaluation” to other government bodies, which can prolong the process beyond the one-month period provided by law, as regulations do not clearly guarantee this time limit; (5) excessive delays in government review of registration applications; and (6) restrictions on founders and managers, including a prohibition on participation by individuals merely suspected of terrorism or WMD proliferation, or affiliated with court-designated extremist organizations, even in the absence of a criminal conviction.
Barriers to Operations(1) Burdensome and vague reporting requirements; (2) an obligation for NNOs to ensure government access to their activities and to notify the MoJ of planned events; (3) a requirement to obtain prior MoJ consent before receiving foreign funding exceeding approximately $3,397; (4) mandatory accreditation of foreign employees of NNOs, as well as their family members; and (5) harsh sanctions for legal violations.
Barriers to ResourcesLimits on foreign funding
Barriers to ExpressionUzbek law formally does not impose explicit restrictions on speech or advocacy. However, legislation contains vague provisions that allow for broad interpretation, enabling authorities to restrict freedom of expression in practice.
Barriers to AssemblyThe legal framework governing peaceful assembly remains vague or underdeveloped, and severe punishments, along with the potential use of force, act as significant deterrents to public protest.

This section provides a brief overview of Uzbekistan’s legal framework for the promotion and protection of civic freedoms. Click a subheading for more, or click here to expand all subheadings.

This section provides an in-depth assessment of Uzbekistan’s legal environment for civic freedoms, including the barriers to the exercise of the freedoms of association (formation, operations, resources), expression, and peaceful assembly. Click a subheading for more, or click here to expand all subheadings.

ORGANIZATIONAL FORMS

The Civil Code defines a legal entity to include both commercial and non-commercial organizations and contains a list of permissible legal forms, including, among others, public associations, public funds, institutions, associations (unions) of legal entities, and citizens’ self-governance bodies. Mirroring this framework, the Law on NNOs states that non-governmental, non-profit organizations may be established in the following forms: public association, public fund, institution, and other lawful forms provided by legal acts. NNOs may also form associations or unions for the purpose of coordinating their activities and representing and advocating for common interests. NNOs can be established to protect the rights and lawful interests of natural persons and legal entities; to achieve social, cultural, and educational aims; to satisfy spiritual and other non-material needs; and to pursue other public benefit purposes. Founders are required to detail these organizational purposes in the NNO’s charter.

  • A public association is a voluntary association of citizens (natural persons only) who unite to pursue common interests in the areas of politics, economics, social development, science, culture, ecology, and other aspects of life (Article 1, the Law on Public Associations; and Article 11, the Law on NNOs).
    • A public fund is a non-membership organization founded by natural persons and/or legal entities based on voluntary property contributions to pursue charitable, social, cultural, educational, or other public benefit purposes (Article 12, the Law on NNOs; and Article 3, the Law on Public Funds).
    • An institution is recognized as an organization established by natural persons and/or legal entities to carry out social, cultural, and other non-profit functions (Article 13, the Law on NNOs). Notably, this legal form is a legacy of the Soviet legal system, and there are no existing procedural rules for establishing and registering an institution. Therefore, this legal form is essentially nonexistent in practice.
    • An association (union) of NNOs is a legal entity whose founding members are legal entities (NNOs). It is not permitted to establish an association composed of both natural persons and legal entities simultaneously. Members of such associations (unions) bear secondary (vicarious) liability for the obligations of the association, as determined by its charter.

Uzbek law also categorizes NNOs according to the territorial scope of their activities: international NNOs, which may operate both within Uzbekistan and abroad; republican or inter-regional NNOs, which may operate across multiple regions or nationwide; and local NNOs, which may operate only within a single region or in Tashkent city. Local NNOs include organizations at the regional, district, city, settlement, and village (kishlak) levels.

PUBLIC BENEFIT STATUS

Uzbek law provides for a “charitable organization” status, but it is not linked to fiscal benefits. Instead, all registered NNOs are exempt from certain taxes and financial obligations.

(1) A charitable organization is a non-governmental, non-commercial organization established for the purpose of implementing philanthropic activities (Article 3 of the Law on Charity). Charitable organizations may be created in the form of a public association, public fund, or in any other form stipulated by legislative acts (Article 6 of the Law on Charity). Significantly, however, there are no tax or fiscal benefits linked to charitable organization status. Article 14 of the Law on Charity declares that the government can provide support (e.g., discounts on rent, if the accommodation or other property is owned by the government; the transfer of government property to charitable organizations, etc.) to charitable organizations. But there is no legal obligation to provide such benefits to charitable organizations.

(2) According to Article 58 of the Tax Code, the term non-commercial organization includes any legal entity registered in a form established by law for non-commercial organizations that meets the following criteria:

  • it does not have the generation of income as its objective; and
  • it does not distribute income or property among its participants/members.

Through registration, NNOs acquire rights as a legal entity and the status of a non-commercial organization. All non-commercial organizations, irrespective of their form of incorporation, are exempt from the following taxes:

  • corporate income (profit) tax, except where NNOs carry out commercial activities (Article 318 of the Tax Code);
  • corporate property tax (Article 411 of the Tax Code); land tax (Article 426 of the Tax Code); and
  • tax on the use of water resources (Article 442 of the Tax Code).

The foregoing fiscal privileges do not generally apply to income generated through commercial activities of NNOs. Certain categories of NNOs are exempt from several mandatory payments and taxes, even where the NNO carries out economic activity through a corporate subsidiary. For example, enterprises owned by public associations of disabled persons are exempt from VAT and corporate income (profit) tax (Article 243 and 337 of the Tax Code) if “the sold goods and self-offered services are produced by legal entities, whose only participants are public associations of persons with disabilities, and those disabled persons account for at least 50 percent of total staffing, and the payroll for persons with disabilities makes up at least 50 percent of total payroll.” Furthermore, income derived from the sale of goods intended for religious use by the population is also exempt from corporate income/profit tax.

PUBLIC PARTICIPATION

Article 36 of the Constitution addresses public participation, and provides that “All citizens of the Republic of Uzbekistan shall have the right to participate in the management and administration of public and state affairs, both directly and through representation. They may exercise this right by way of self-government, referendums and democratic formation of state bodies, as well as public control over activities of state bodies. The procedure of public control over activities of state bodies shall be defined by law.”

The 2014 Law on Social Partnership addresses the mechanisms for government-civil society interaction. Under the Law, CSIs have the right to: (1) participate in development initiatives; (2) participate in public discussion and examination of development proposals; (3) submit proposals to state bodies for conducting joint events; and (4) monitor the implementation of development programs.

The 2018 Law on Public Control authorizes monitoring of the activities of state bodies and institutions by citizens, CSIs, public councils, and the media. Monitoring methods include applications and inquiries to state bodies; participation in open collegiate meetings of state bodies; public hearings and public monitoring; public expert evaluations; and public opinion research. Information, recommendations, and proposals are then to be considered by state bodies.

The 2021 Law on Normative Legal Acts provides that all draft laws and regulations shall undergo public or professional discussion and sets forth the procedure for holding such discussions. The Law also enshrines the right of citizens, self-governing bodies, CSIs, and the media to monitor the implementation of laws and legal measures, in accordance with the Law on Public Control and other laws. On April 10, 2025, the Law was supplemented with an important provision for the lawmaking process. It provides that, after five years from the entry into force of a law, an assessment of its regulatory impact may be conducted at the initiative of responsible state bodies and committees of the chambers of the Oliy Majlis of the RUz, in order to evaluate its effectiveness, the achievement of its stated objectives, and its expected outcomes. CSIs and other organizations may also be involved in this process (Article 36 of the Law).

On March 4, 2021, the President issued a decree approving the Concept on Development of Civil Society in 2021-2025 (“the Concept”) and the Roadmap on Implementation of the Concept. The Concept sets conditions for CSIs’ active participation in public governance and envisions increased CSI participation in the implementation of state social projects. It sets a range of targets, such as increasing the percentage of CSI representative membership in public councils (consultative bodies under the auspices of state bodies at national and local levels) to 5% in 2021 and to 25% in 2025. The adoption of the new Strategy for the Development of Civil Society until 2030 is scheduled for 2026.

On August 26, 2024, the President signed the Decree on Measures to Further Improve the System of State Support for CSIs. The Decree introduced several initiatives related to public participation, including the following:

  • amendments to the Law on Social Partnership seeking to improve state support to CSIs;
  • amendments to the Law on Public Control seeking to develop more effective mechanisms of public control; and
  • the establishment of the office of a permanent NNO representative in the Legislative Chamber of the Oliy Majlis (parliament) (to be held by the Chairman of NANNOUz).

On March 11, 2025, Uzbekistan acceded to the Aarhus Convention (Law No. ZRU-1045), significantly expanding the capacity of citizens to monitor the activities of state bodies within the environmental sector. The Convention guarantees: access to environmental information; public participation in decision-making processes; and the right to judicial protection.

Interactive citizen services are being developed, such as the “virtual reception” of President Mirziyoyev (gov.uz) and the portal for discussions of draft normative legal acts (regulation.adliya.uz). Public advisory councils have been formed under almost every state body.

According to Presidential Decree of August 26, 2024, the chairperson of NANNOUz represents the interests of all NNOs (members and non-members of NANNOUz) in Parliament. While NNOs have the right to participate in legislative activities, in practice, few NNOs take advantage of this right, and there is no obligation for the government and parliament to hold public consultations on proposed legislation. This is reflected in the wording of the relevant laws: for instance, under Article 16 of the Law on the Procedure for Drafting and Submitting Laws to the Legislative Chamber of the Oliy Majlis of the RUz, the subject of the right of legislative initiative merely “has the right to” organize a public opinion study prior to submitting a draft law to the Legislative Chamber — with the procedure and form of such study determined at its own discretion. More broadly, the relevant laws consistently employ permissive language, including “may,” “as a rule,” and “have the right to,” without establishing binding consultation requirements.

This gap between formal rights and practical engagement is further illustrated by the experience of the online consultation portal, where draft legal acts are published for public discussion. While the platform provides a formal opportunity for participation, public engagement remains limited in practice, with relatively few comments submitted and no clear indication of how such feedback is reflected in final decisions. Of the 1,274 normative legal acts adopted in 2025, 93% of which were subordinate legislation, only 737 draft acts were posted on the portal, and the majority received no public comments.

Several structural barriers account for this low engagement. The minimum 15-day comment period, which is routinely applied by default, is insufficient for meaningful analysis of technically complex acts. At the same time, no systematic public notification mechanism exists, and the portal’s own Telegram channel has fewer than 2,000 subscribers in a country of over 38 million people.

Despite repeated executive interventions, most recently the Presidential Decree No. PP-75 of February 19, 2024, which directed that “information on the preparation of draft normative legal acts of significant economic and socio-political importance be published on the Portal prior to their development… and that public proposals and recommendations be obtained at the earliest stage and form the basis for the drafts,” the portal continues to publish finalized draft texts rather than early-stage consultation materials. As a result, citizens and NNOs are engaged only after key conceptual decisions have already been made. Compounding this problem, the legislation provides no criteria for determining what constitutes “significant economic and socio-political importance,” nor does it specify which authority makes such determination, leaving the classification entirely to the discretion of the drafting body.

In practice, government bodies are often unwilling to engage in meaningful public participation. For instance, the OECD Public Governance Review for Uzbekistan in 2023-2024 noted that “engagement with stakeholders does not appear to be widely diverse. While Paragraph 16 of RP-5025 suggests that developers of regulatory drafts should consult various stakeholders, including academic and foreign interests, there seems to be a gap between this guideline and its practical implementation. Business associations are notably the primary participants providing feedback on regulatory proposals, while citizen involvement is comparatively limited.”

BARRIERS TO FORMATION

Legal barriers affecting the formation and registration of NNOs include the following:

  1. Registration is mandatory, and unregistered group activities are prohibited. An NNO is established only when officially registered (Article 15 of the Law on NNOs). Possible sanctions for carrying out activities through an unregistered (i.e., illegal) organization include a fine of 10-25 BCVs (or $340-$850), according to Article 239 of the Administrative Code. Active participation in unregistered organizations exposes those who violate the law to a fine of 50 -100 BCVs ($1,698-$3,397), or restriction of freedom from two to five years, or imprisonment of up to five years (Article 216 of the Criminal Code).
  2. The registration requirements, which vary according to the organizational form, are more demanding for NNOs than for commercial organizations. Required documentation is extensive.
  3. The registration application, at the discretion of registration bodies, can be sent for “expertise” to relevant organizations. The list of such organizations is not provided, and neither the exact dates of approval nor the minutes of their meetings or negotiations, if they took place, are provided to the initiative groups applying for registration.
  4. The grounds for denial of registration allow broad discretion in the government’s decision-making on whether to register an organization. For example, the law allows for denial where the name or symbols of an NNO encroach on the “morality, national or religious feelings of citizens.” In 2025, additional justifications for denying the registration of NNOs (Article 25 of the NNO Law) were introduced, including 1) If initiators (founders) or members of management bodies are included in the list of persons, participating in or suspected of participating in terrorist activities or in proliferation of weapons of mass destruction, or are members or managers of court-recognized extremist organizations; and 2) If initiators (founders) or members of management bodies have a non-expired conviction for crimes relating to appropriation, spending, or fraud (in case of establishment of public foundations).”

One positive trend conducive to the formation and operation of NNOs is the reduction of the state fee for state registration of NNOs: it has been reduced several times since Shavkat Mirziyoyev became President of Uzbekistan. From March 1, 2021, the state fee and registration deadlines were revised as follows:

  • NNOs operating on the territory of the region, district, city, village, and aul became “territorial” NNOs, and the state registration fee for such NNOs is 50% of BCVs (i.e., the rate of state registration fee for a regional NNO was 1 BCV, and from March 2021, it became 50% of the BCVs; for other types of NNOs the rate of state registration fee has not changed).
  • The period for re-registration of NNOs, as well as state registration of their symbols, was reduced from one month to 15 days.
  • For state registration (re-registration) of symbols of public associations of persons with disabilities, veterans, senior citizens, women, and children, the state fee is not charged.

Another positive innovation is the possibility to register NNOs through the web portal e-ngo.uz, which was launched by the MoJ. This web resource also allows NNOs to receive several services electronically, such as state registration, and re-registration of NNOs and their symbols. However, according to many initiative groups who have tried to register an NNO this way, it is nearly impossible to do so.

BARRIERS TO OPERATIONS

NNOs are required to submit reports to multiple government bodies. According to Article 33 of the Law on NNOs, NNOs must maintain activity records and submit reports to the registration authorities (the MoJ and its departments), to the statistical authorities, and to the tax authorities. All NNOs are subject to the same detailed reporting requirements; there is no simplified reporting form available for small and medium-sized NNOs. Reporting frequency varies by category: some reports are required monthly, others quarterly, and others annually.

In 2025, a new reporting requirement was introduced in Article 8 of the Law on NNOs for NNOs receiving funds and property from foreign sources or, on their instruction, from other persons. Under this requirement, such NNOs must publish, on a quarterly basis, information on the use of funds and property on their official website, in the mass media, or on their social media pages, or on a special electronic platform for the provision of state services to NNOs in a form approved by the MoJ. (For more details on this requirement and other 2025 changes, see ICNL’s Overview.)

According to Article 8 of the Law on NNOs, NNOs are obliged to provide access to information on the use of organizational property and financial assets, ensure MoJ access to information on all their activities, and notify the MoJ in advance of any events they conduct.

Article 239 of the Administrative Code stipulates a fine for NNOs and their managers ranging from 3 to 40 BCVs for carrying out activities without registration, the use of unregistered symbols, failure to notify the government about events or grant access to them, receiving foreign funds without government consent, and non-compliance with reporting requirements.

The 2025 amendments to NNO legislation impose numerous additional restrictions on NNO activities, including the requirement to notify the MoJ about upcoming trips of NNO representatives to foreign countries, and to obtain approval for the receipt of all funds and assets from foreign states, organizations, and citizens.

As of June 1, 2018, NNOs are no longer required to obtain prior approval from the justice authorities to hold an event; instead, they must notify the relevant justice body in writing or electronically about an event within the following timeframes:

  • when planning an event on the territory of the Republic of Uzbekistan without the participation of a foreign citizen – at least 10 days before the day of the event; and
  • when planning an event on the territory of the RUz with the participation of a foreign citizen or on the territory of a foreign state – at least 20 days before the day of the event. In some cases, as prescribed in the regulations, it is sufficient to notify at least three days before an event.

The notification procedure is functionally similar to the prior approval requirement, since the MoJ retains the right to request additional information no later than three days before a scheduled event and may prohibit the event based on its review of the notification. The justice body analyzes information received about the event, its compliance with legislation, and its alignment with the NNO’s charter. Based on this review, the MoJ may prohibit the NNO from conducting the event by providing notification at least two days in advance.

BARRIERS TO RESOURCES

In general, Uzbek legislation does not prohibit NNOs from receiving funding from foreign sources. Article 29 of the Law on NNOs allows them to receive “other revenues not prohibited by legislative acts.” Article 8 of the Law on NNOs requires NNOs to “coordinate with the registration authority the receipt of funds and property from foreign states, international and foreign organizations, citizens of foreign states or, on their instruction, from other persons, as well as to publish in the established procedure information about the result of the project carried out on the territory of the Republic of Uzbekistan at the expense of these sources.” However, NNOs are obligated to secure prior approval of a grant from a foreign source, and it is difficult to obtain.

Effective October 4, 2023, the Uzbekistan’s Cabinet of Ministers approved the Regulation on the Procedure for Approval of Receipt of Funds and Property from External Sources by Non-Governmental Non-Profit Organizations and the Procedure for Implementation of Projects on the Territory of the Republic of Uzbekistan Financed from External Sources (hereinafter – Regulation #527). While providing some procedural simplification, Regulation #527 still significantly restricts NNOs’ access to foreign funding, as the requirement to obtain prior state authorization remains in place.

Regulation #527 simplifies the procedure for registration of funds and property from foreign sources by:

  • limiting the number of state authorities that must render their opinion and/or decision in the registration process. In particular, according to Regulation #527, the MoJ is not obliged to notify and request the opinion of the Ministry of Foreign Affairs of Uzbekistan before making a decision to approve a foreign grant;
  • changing the conditions and terms of the decision to approve a foreign grant. Regulation # 527 gives the MoJ 15 days to consider an NNO’s application for registration of a foreign grant, and allows the MoJ to add up to ten days for “further consideration,” bringing the entire process to a maximum of 25 days (in past regulations, this timeframe remained unclear);
  • clarifying that recipients of foreign grants are required to obtain approval from the MoJ for a foreign grant if the value of the foreign grant exceeds 100 BCVs, which is equivalent to approximately $3,397 (i.e., the minimum threshold still applies).

Regulation #527 requires NNOs to have a “state organization” that provides them with “organizational and methodological support.” Such a “state organization” is assigned to each NNO by the MoJ for the purpose of participating in and supporting the NNO in the implementation of a foreign grant if the value of the foreign grant received exceeds 1,000 BCVs, which is equivalent to approximately $34,000. The NNO may submit its proposal to the MoJ as to which governmental entity may be designated as its partner “state organization.” An NNO may decide for itself whether it will have a partner “state organization.” If the NNO decides to partner with a “state organization,” the choice of such an organization is left to its discretion. Regulation #527 defines the competence of a “state organization” as a partner of an NNO recipient of a foreign grant as follows: “providing organizational and methodological support to the project”, including assistance in various forms.

The MoJ may deny NNOs the right to receive funds from foreign sources on a wide range of grounds, including such grounds as:

  • “The activities of an external source, as well as the use of the funds and property received, may lead to an immediate change in the constitutional order of the [RUz], damage its sovereignty, integrity and security, as well as violate the constitutional rights and freedoms of citizens, are aimed at infringement of health and morality, propaganda of war, social, national, racial and religious enmity, legalization of proceeds of crime and financing of terrorism;
  • if the external source is included in the list of persons involved or suspected of involvement in terrorist activities or proliferation of weapons of mass destruction, according to legal documents, and the organizations and persons associated with them are judicially recognized as extremist and terrorist;
  • if the external source is the parent organization located outside the [RUz] or its founders, forcibly liquidated by a court in the territory of the [RUz];
  • if the purpose of receiving funds and property contradicts the requirements of the regulatory documents and the charter (statute) of the non-governmental non-profit organization;
  • if the application and the documents attached to it contain false information;
  • if the application is submitted in violation of the procedure and terms established by these Regulations;
  • if the non-governmental non-profit organization fails to provide the registration authority with additional information requested in connection with the application within the specified period of time.” (Para 18 of Regulation #527)

The MoJ may also request additional documents from an NNO and, if such documents are not submitted within the established timeframe, prohibit NNOs from receiving funds and property from foreign sources.

An NNO is obliged to use funds and property received from foreign sources in accordance with its constituent documents, charter (regulation) of the NNO, as well as the goals and methods specified in the submitted documents (Para 32 of Regulation #527). Receipt of funds and property from foreign sources without the consent of the MoJ, or failure to publish information on the use of funds and property received from these sources (as well as information on the results of the project financed by these sources) in accordance with the established procedure, is punishable for managers of NNOs by a fine of 10 to 24 BCVs.

NNOs are obliged to provide information and documents “on the use of funds and property received from external sources on the basis of a request from the registration authority.” (Para 33 of Regulation #527)

BARRIERS TO EXPRESSION

According to Uzbek law, there are generally no formal barriers restricting speech or advocacy activity; for example, NNOs and individuals are theoretically free to criticize the government. In practice, however, there are constraints on speech and advocacy. NNOs engaging in human rights activity or government monitoring, for example, may be subject to harassment or even closure. Because these measures are extra-legal, they are unpredictable.

On March 30, 2021, the President signed new amendments to the Law on Informatization, Criminal Code, and Administrative Code (the Law). The amendments introduced a new offense covering public calls to fail to comply with or violate Uzbek law, posing a threat to public order and public safety, including those carried out using the media, telecommunication networks, the internet, as well as print media. In general, the Law significantly restricts freedom of expression for civil society, journalists, and others by prohibiting broad categories of speech, while also imposing new obligations for website owners, including bloggers.

Website owners and bloggers are required to: (a) continuously monitor their websites and pages for prohibited content; and (b) take immediate measures to restrict access to such content. Non-compliance makes website owners liable for any resulting damages.

The Law also creates a right of redress for individuals who believe their “rights” or “legitimate interests” have been affected to sue website owners for damages. Together, these provisions are likely to produce a chilling effect on speech in violation of international law: website owners, who are ill-equipped to undertake adequate legal assessments, will likely remove any content that could be deemed prohibited.

In addition to the discussed Article 201-1, the Administrative Code contains other articles with similarly vague, evaluative language, such as “false information” (Article 202-2) or “threat to public order” (Article 202-2). The absence of clear criteria for what constitutes “threatening” may lead to overly broad interpretation of the law in practice. To ensure the principle of legal certainty, the following are needed:

  • a clear distinction between value judgments and verifiable false information that is disseminated intentionally with the aim of causing real harm; as well as
  • specific criteria for the proportionality of punishment commensurate with the scale of the violation and the severity of the consequences for society.

This would help balance the state’s tasks in safeguarding security with the protection of citizens’ right to freedom of expression, and reduce the risks of involuntary self-censorship in the online space.

BARRIERS TO ASSEMBLY

Article 38 of the 2023 version of the Constitution states that “Citizens have the right to exercise their public activity in the form of meetings, assemblies and demonstrations in accordance with the laws of the Republic of Uzbekistan. The authorities shall have the right to suspend or prohibit these activities only for justified security reasons.” The content of the article has not changed significantly compared to the previous version of the Constitution; however, the wording of the article allows it to be extended not only to those who take part, but also to those who organize such public activity.

On July 29, 2014, the Cabinet of Ministers adopted Decision No. 205 on measures to further improve the procedure for organizing and holding public events, which established the rules for holding “mass events” (Annex No. 1 to Cabinet Decision No. 205 of July 29, 2014). A “mass event” is defined as “the presence of citizens organized at the venue of a public event for the purpose of holding social and political programs (symposiums, conferences, congresses, etc.); cultural and entertainment programs and performances (musical, literary and other festivals, concerts, theatrical, sports and promotional events, folk festivals, circus and folklore performances, games, shows and competitions, etc.); as well as national religious and professional holidays, attended by one hundred people or more.”

Resolution No. 205 specifies that its effect does not cover the holding of meetings, rallies, street processions, and demonstrations. At the same time, there is no unified normative legal act establishing the procedure for holding such events. According to the Ministry of Internal Affairs (MIA), the procedure for organizing and holding such events is regulated by Article 33 of the Constitution, Article 202 of the Criminal Code, Article 201 of the Administrative Code, and Article 217 of the Criminal Code, and the Resolution of the Cabinet of Ministers No. 205 on Measures to Further Improve the Procedure for Organizing and Holding Mass Events.

At the same time, penalties provided for in the Administrative Code may deter organizers from arranging and holding public gatherings. For example, a fine of 60 to 80 BCVs, or administrative detention for up to 15 days, is provided for violating the established procedure for organizing or holding public gatherings, rallies, marches, and demonstrations (Article 201). Violations of the rules for holding mass events (Article 201 of the Administrative Code) are punishable by fines of 5 to 10 BCVs ($74 to $147) for citizens, and 10 to 15 BCVs ($147 to $440) for officials. Violations of the rules for holding religious meetings, street processions, and other ceremonies of worship are punishable by a fine of 80 to 100 BCVs ($2,347 to $2,934), or administrative detention for up to 15 days (Article 201 of the Administrative Code). Creating conditions for holding unauthorized meetings, rallies, street processions, and demonstrations by providing participants with premises or other property (communications, multiplying and other equipment, hardware, and transportation means), or creating other conditions for holding such events, is punishable by a fine of 50 to 100 BCVs for citizens, and 70 to 150 BCVs for officials (Article 202 of the Administrative Code).

In 2024, two decrees of the Cabinet of Ministers on tightening the requirements for ensuring the safety of citizens and protecting public order during mass events were adopted: Decree No. 360 of June 28, 2024 (concerning Tashkent); and Decree No. 569 of September 12, 2024, which, among other things, expanded the responsibilities of an organizer of mass events.

Decree No. 360 stipulates that, in order to tighten measures to ensure the safety of citizens and maintain public order during mass events, it is prohibited to attract citizens to mass events by distributing food, goods, and other products, and merchandise free of charge or selling them at an extremely reduced price for advertising, promotional, or other purposes. Organizers of a public event and the administration of the site of such public event who violate the rules for holding public events are held liable in accordance with the procedure established by the Administrative Code.

Decree No. 569 on Tightening Measures to Ensure the Safety of Citizens, Maintain Public Order and Prevent Possible Emergencies when Holding ‘Mass Events’ provides that, for the organizer of mass events, “when choosing a venue for holding a public event, one should consider whether there are conditions in place to ensure the safety of citizens, maintain public order and prevent possible emergencies, as well as effective organization of the evacuation of citizens in threatening situations.”

In particular, the organizer of mass events must now “take measures to prevent emergencies and, when and if such threats arise, create conditions for effective evacuation of citizens… In addition, the passport of a permit to hold mass events shall include an additional requirement for the organizer to ensure the availability of technical and special means to eliminate emergencies related to natural hazards and man-made accidents.”

Additional Resources

This section contains links to external reports and news reports relevant to civic freedoms. The Historical Notes section contains links to past developments which ICNL has reported on. Click a subheading for more, or click here to expand all subheadings.

GLOBAL INDEX RANKINGS
Ranking BodyRankRanking Scale
(best – worst possible)
UN Human Development Index107 (2023)1 – 193
World Justice Project Rule of Law Index83 (2024)1 – 142
Transparency International121 (2024)1 – 180
Fund for Peace Fragile States Index96 (2024)179 – 1
Freedom House: Freedom in the WorldStatus: Not Free
Political Rights: 2
Civil Liberties: 10 (2025)		Free/Partly Free/Not Free
40 – 0
60 – 0
REPORTS
UN Universal Periodic Review ReportsUzbekistan UPR page
UN Human Rights ReportsUzbekistan
U.S. State Department2024 Country Reports on Human Rights Practices
Fund for Peace Fragile States Index ReportsUzbekistan
IMF Country ReportsUzbekistan and the IMF
Human Rights WatchWorld Report 2025: Uzbekistan
International Center for Not-for-Profit Law Online LibraryUzbekistan
historical noteS

The legal environment for civil society in Uzbekistan began to take shape in the 1990s and early 2000s, when key legislation such as the Citizens’ Self-Governance Bodies Act, the Voluntary Associations Act, and the Non-Profit Non-Governmental Organizations Act was adopted. Many “citizens’ action” groups emerged during this period, often with international donor support.

GONNOs

Alongside independent initiatives, the state created government-organized NNOs, financed from the budget and active across all districts. Today, large GONNOs such as the Mahalla Foundation, the Women’s Committee, and the Youth Union dominate the civic landscape, with extensive branch networks and ongoing state funding. Other GONNOs such as YUKSALISH, the National Association of NNOs of Uzbekistan (NANNOUz), and the Centre for Development Strategy play an active role in the development of civil society.

Mahallas

Mahallas—traditional neighborhood institutions recognized by law as citizens’ self-governing bodies—remain central to community life, with more than 10,000 nationwide. Governed by the Law on Self-Governance Bodies, they function as intermediaries between state and society. Their responsibilities, powers, and funding from the state budget expand every year.

A mahalla’s administrative staff—referred to as the “mahalla seven”—consists of a chairman, an assistant mahalla hokim, a youth leader, a women’s activist, a prevention inspector, a tax officer, and a social worker. They report on their activities to the mahalla’s assembly of citizens.

Legal Framework and Reforms

In 2023, Uzbekistan amended its Constitution to include a dedicated chapter on civil society institutions (Chapter XIII) covering NNOs, mahallas, GONNOs, media, and other CSOs. The amendment obliges the State to respect their rights, ensure equitable opportunities for participation in society, and prohibits interference in NNO activities. It also specifies that “public associations may be dissolved, prohibited, or restricted in their activities only through a court ruling.”

The main legal forms of NNOs are public associations, public foundations, and institutions. Their operations are regulated by the Civil Code, the Law on Non-Governmental Non-Commercial Organizations (Law on NNOs), the Non-Governmental Non-Profit Organizations’ Operations Safeguarding Act, the Public Foundations Act, and the Public Associations Act. The Code on Administrative Offences (CoAO) and the Criminal Code provide for liability in case of legal violations.

NNOs and other CSIs are also governed by presidential decrees. Since President Mirziyoyev came to power in September 2016, several decrees have eased restrictions, including by simplifying event notification procedures, allowing foreign grants to be received through more banks, and reducing social tax rates. These reforms led to an increase in NNO registrations, but challenges remain: registration remains complex, unregistered groups cannot operate, and foreign funding still requires coordination with the government.

Funding and Sustainability

NNOs in Uzbekistan draw funding from membership fees, founder contributions, voluntary property contributions and donations, entrepreneurial activities, state social procurements, grants, foreign aid, and other lawful income.

State financing has grown steadily, primarily through subsidies, grants, and State Social Procurement (SSP). The Public Foundation for Support of NNOs and other CSIs, under the Oliy Majlis, manages both budgetary and non-state funds for NNO projects. State administration bodies also provide SSP for socially significant projects.

Accessing foreign aid remains challenging, often requiring authorization from the MoJ or other registration bodies. Corporate donations are negligible due to the lack of tax incentives, and cash donations from individuals are rare, though in-kind support and volunteering are more common. Entrepreneurial activities are limited by complex reporting requirements. Overall, most NNOs remain financially fragile, even when receiving state support, due to limited funding diversification.

Key Events in 2025

On May 5, 2025, Uzbekistan’s Cabinet of Ministers approved a 2025 Roadmap to implement the Concept on Civil Society Development, assigning tasks to state bodies and government-affiliated organizations. These included revising the Law on Public Control, developing a Code of Ethics for Non-governmental Non-commercial Organizations (NNOs), streamlining implementing regulations, improving NNO registration procedures, expanding financial opportunities (including entrepreneurial activities), and drafting a long-term framework for civil society development. While not all measures were implemented, the government established working groups in September 2025 to prepare a new framework (now renamed the Strategy for Civil Society Development until 2030), expected to be adopted in 2026.

On August 21, 2025, the President signed amendments affecting nine laws governing NNOs. The reforms reduce some administrative penalties and introduce safeguards against unlawful state interference, but also impose new obligations and restrictions. These include expanded reporting requirements on foreign funding for NNOs, other legal entities, and individuals; new rules governing charitable donations and public fundraising; and revised procedures for registering public foundations and allocating state support. The amendments introduce additional grounds for denying NNO registration, restrict certain activities of foreign staff, and prohibit the use of foreign funds for election-related activities. While some provisions may support transparency and accountability, others raise concerns due to vague definitions and increased compliance burdens, the practical impact of which remains unclear.

NEWS

Uzbekistan approves draft law on online promotion of self-committed offenses (March 2026)

Uzbekistan’s Legislative Chamber approved a draft law introducing administrative liability for individuals who share online content promoting offenses they themselves committed, aiming to strengthen public order and deter harmful social media trends.

Civil Society Week Launched in Tashkent (December 2025)

Civil Society Week opened in Tashkent on December 1, 2025, bringing together government, CSIs, and international experts, with discussions highlighting recent legislative initiatives, including the August 2025 law amending multiple laws regulating civil society.

Draft Law on Online Platforms: What will change for users and bloggers? (May 2025)

The draft law introduces legal regulations for social networks and messengers in Uzbekistan, establishing content monitoring obligations for platform owners, and defining the liability of bloggers for disseminating false information.

Uzbekistan acceded to the Aarhus Convention on public participation in environmental decision-making (March 2025)

Uzbekistan joined the Aarhus Convention, undertaking new obligations to ensure public access to environmental information, participation in decision-making, and access to justice in environmental matters.

International Human Rights Organisations Call on President Mirziyoyev to Veto “Undesirable” Foreigners Law (June 2024)
International human rights organisations express profound alarm at the recent approval of a new law by Oliy Majilis, the lower chamber of Uzbekistan’s Parliament, concerning the legal status of foreign citizens and stateless individuals. These amendments represent a flagrant violation of international standards on freedom of expression and pose a serious risk of isolating the country. We urgently call on the President to veto this proposal and uphold fundamental human rights.

Foreigners may be deemed undesirable for statements about Uzbekistan and its people (June 2024)
Uzbekistan is suggesting a procedure to designate foreign citizens as undesirable. The designation may be based on statements and actions threatening the country’s sovereignty, integrity, and security, inciting interstate and national enmity, demeaning the honor, dignity, or history of its people.

Expert Commentary on the Draft Law of Uzbekistan on Free Legal Aid (May 2024)
The United Nations Office on Drugs and Crime (UNODC) has published an analysis of the draft Law of the Republic of Uzbekistan on Free Legal Aid. The draft law provides for the creation of a unified system for managing, coordinating and regulating legal aid; ensures state-funded legal advice to socially vulnerable groups of the population in administrative and civil cases, along with criminal proceedings; and determines the categories of persons who are guaranteed the right to receive free legal assistance.

New procedure for NGOs to work with international grants: one step forward, two steps back? (August 2023) (Russian)
The Ministry of Justice has proposed a new procedure for coordination and partnership between non-governmental organizations (NGOs) and government authorities in the implementation of international grant projects. Despite the positive changes, measures limiting the freedom of association and activities of NGOs are still in place.

Civil Society Struggles for Freedom in Central Asia (July 2023)
Efforts to establish robust, independent civil societies are facing headwinds in the post-Soviet republics of Central Asia, where foreign-funded NGOs have long been regarded as agents of Western influence and even purveyors of “color revolutions.” In Uzbekistan, officials boast of “thousands” of functioning NGOs, but they are subject to tight controls and onerous checks. However, the government is reconsidering a year-old decree requiring “significant size-grant receivers” to partner with state institutions.

How Will Civil Society Develop? (May, 2023) (Russian)
Resolution No. 192 “On Measures for the Implementation of the Development of Civil Society Concept Paper in 2023 and 2024” was adopted by the Cabinet of Ministers on May 6, 2023.

The bill on rallies is being considered by the Presidential Administration – Ministry of Justice (March, 2023) (Russian)
The draft law on rallies has been developed and approved, and is now being considered by the Presidential Administration, Mirjalol Allakuliyev, head of the department of the Ministry of Justice of Uzbekistan, said. The procedure for organizing rallies is still not spelled out in the laws, although there is responsibility for its violation.

ARCHIVED NEWS

The draft strategy “Uzbekistan-2030” has been published for discussion (July 2023) (Russian)

President discusses constitutional reform (June 2022) (Russian)

New article examines NNO code (May 2022) (Russian)

Uzbekistan registers a branch of the IREX (April 2021)

Environmental activism begins to make its mark in Central Asia (March 2021)

Uzbekistan: Public or State Chamber (April 2020)

Uzbekistan Adopts Strict Regulations to Fight COVID-19 (April 2020)

Uzbek Lawmakers Legitimize Activities of Volunteers (November 2019)

Tashkent hosts the National Forum of Civil Initiatives (July 2019)

Burkhanov appointed chairman of “Yuksalish” National Movement (January 2019)

Ministry of Justice of Uzbekistan and USAID signed a Memorandum of Understanding (June 2018)

Law on public control enters into force in Uzbekistan (March 2018)

Concept of tax reform for 2018-2020 published for public discussion (March 2018)

Shavkat Mirziyoyev orders drafting of new tax code (February 2018)

UN High Commissioner for Human Rights in historic Uzbekistan visit (May 2017)

Uzbekistan adopts law on social services for population (December 2016)

Uzbekistan elects Shavkat Mirziyoyev as president (December 2016)

Ministry of Justice receives right to check CSOs’ bank accounts (April 2016) (Russian)

Government significantly decreases sizes of administrative penalties for CSOs (April 2016) (Russian)

Law of Uzbekistan on Appeals of Individuals and Legal Entities discussed (February 2015)

Uzbekistan Gears Up to Vote for “Rubberstamp” Parliament (December 2014)

HRW Documents Plight Of Political Prisoners (October 2014)

Free political prisoners on Constitution Day (December 2012)

EU representative visits Uzbekistan (December 2012)

CIVICUS intervention in the UPR for Uzbekistan (October 2012)

Uzbekistan “not free” according to internet freedom report  (October 2012)

Watchdog urges EU action over human rights (June 2012)

Activist free but crackdown widening (April 2012)

Release of Mr. Norboy Kholjigitov, ongoing arbitrary detention of eight other HRSU members (October 2011)

AIDS activist released, but other human rights defenders harassed (September 2011)

Internet censorship in Uzbekistan (August 2011)

British Embassy staffer fined by court for contact with activists (July 2011)

Tashkent journalist lost her job because of the trip abroad (July 2011)

Activists harassed after TV broadcast (April 2011)

Uzbekistan can’t muzzle the messenger (April 2011)

Government shuts down Human Rights Watch office (March 2011)

Uzbek human rights group facing criminal libel suit (March 2011)