Report On Consideration Of The Penal Code (amendment) Bill (na Bill No. 53 Of 2024)

REPUBLICOFKENYA

THENATIONALASSEMBLY THIRTEENTHPARLIAMENT-FOURTHSESSION-2025

DIRECTORATEOFDEPARTMENTALCOMMITTEES

DEPARTMENTALCOMMITTEEONJUSTICEANDLEGALAFFAIRS

REPORT ON:

THE CONSIDERATION OF THE PENALCODE (AMENDMENT) BILL, 2024 (NATIONAL ASSEMBLY BILL NO. 53 OF 2024)

CLERK'SCHAMBERS HE-TABLE: DIRECTORATEOFDEPARTMENTALCOMMITTEES PARLIAMENTBUILDINGS NAIROBI ATIONAL ASSEMBLY

NOVEMBER2025

LISTOFABBREVIATIONSANDACRONYMS

ALN

Anjarwalla and Khanna LLP

CBS

Chief of the Order of the BurningSpear

CRPD

ConventionontheRightsofPersonswithDisabilities

EBS

Elderof theOrder of theBurningSpear

EGH

ElderoftheOrderoftheGoldenHeart

FORD

Forum for the Restoration of Democracy

ICCPR

InternationalCovenantonCivil andPoliticalRights

LSK

Law Society of Kenya

MCCP

Maendeleo Chap Chap Party

MP

MemberofParliament

NGEC

National Gender and Equality Commission

ODM

Orange DemocraticMovement

OGW

Orderof theGrandWarrior

SDGs

SustainableDevelopmentGoals

UDA

UnitedDemocraticAlliance

UDM

UnitedDemocraticMovement

UN

UnitedNations

WDM

Wiper Democratic Movement

WHO

World Health Organization

LISTOFANNEXURES

AnnexureI:AdoptionSchedule

Annexure 2:Minutes

Annexure3:Penal Code(Amendment)Bill,2024

Annexure 4:Advertisement inviting the public to submit memoranda on the Bill

Annexure5:Letterfrom theClerkof theNationalAssemblyinvitingstakeholders to

submitviews on the Bill

Annexure6:MemorandabyStakeholders

CHAIRPERSON'SFOREWORD

ThisReportcontainstheproceedingsoftheDepartmentalCommitteeonJusticeand Legal AffairsonitsconsiderationofthePenal Code(Amendment)Bill(National AssemblyBill No.53 of2024)whichwasreadaFirstTimeintheHouseon4thJune2025andcommittedtothe Committeetofacilitatepublicparticipation.

The Bill seeks to amend the Penal Code, Cap. 63 to repeal section 226 which provides for the offence of attempted suicide.

In compliance with Article Il8(b) of the Constitution and Standing Order I27(3), the Committee placed an advertisement in the print media on 12th June 2025 inviting the public tosubmit memoranda byway ofwritten statements on theBill.The memorandawere tobe receivedonor before24thJune2025at5.00pm(EastAfricanTime).By theclose of the submission deadline,the Committee had received four(4) memoranda.In addition,the CommitteevidealetterreferencedNA/DDCljLAC/2025/(116)dated7thOctober2025invited stakeholderstosubmitwrittenmemorandaontheBill.

The Anjarwalla and Khanna LLP (ALN), Law Society of Kenya (LSK), National Gender and Equality Commission (NGEC) and Outreach for Action Kenya gave their views on the Bill whichtheCommitteeconsideredinthepreparationofthisReport.

Whileconsidering theBill,the Committee observed that theHighCourt,inthecase of Kenya NationalCommissiononHumanRights&2othersvAttorneyGeneral (ConstitutionalPetitionE045of 2022),declared section226 of thePenal Code as unconstitutional for violating the right to dignity, the right to highest attainable standards of health,therighttoequality andfreedomfromdiscrimination.Thecourtalsoheld thatpersons who attempted suicide could be deemed tobe suffering from a mental illness and thus lacked the intention(mens rea) to commit the crime of attempted suicide. The court held that persons subject tosection226of thePenal Codewerepersonssufferingfrommental illness. Therefore,the Bill seeks to align itwith the Constitution and the Mental Health Act.Also,

TheCommitteeisgrateful totheOfficesof theSpeaker andClerkoftheNationalAssembly for the logistical and technical support accorded to it during its consideration of the Bill. The CommitteefurtherwishestothanktheALN,LSK,NGECandOutreachforActionKenya HonourableMembersof theCommittee andtheCommitteeSecretariatwhomadeuseful contributionstowards thepreparation andproductionof thisreport.

OnbehalfoftheDepartmentalCommitteeonJusticeandLegalAffairsandpursuanttothe provisions of StandingOrder I99(6),it ismy pleasantprivilege and honour topresent to this HousetheReportoftheCommitteeonitsConsiderationofthePenalCode(Amendment) Bill (National Assembly Bill No. 53 of 2024).

It is my pleasure to report that the Committee has considered the Penal Code (Amendment) Bill(NationalAssemblyBillNo.53of2024)andhasthehonourtoreportbacktotheNational Assembly with the recommendation that the House approves the Bill without amendments.

Hon. Murugara George Gitonga, MP Chairman,Departmental CommitteeonJusticeand LegalAffairs

PREFACE

1.1 EstablishmentoftheCommittee

• 1.TheDepartmentalCommitteeonJustice and LegalAffairsisoneof twentydepartmental committeesof theNational AssemblyestablishedunderStandingOrder2l6whose mandatepursuanttotheStandingOrder216(5)isasfollows:
• i. To investigate,inquire into, and report on all matters relating to the mandate, management,activities,administration,operations and estimates of the assigned ministriesanddepartments;
• ii. To study the programme and policy objectives of ministries and departments and the effectivenessoftheimplementation;
• ili To,on a quarterly basis,monitor and report on the implementation ofthe national budget inrespectofitsmandate;
• iv. Tostudyandreviewall legislationreferredtoit;
• V. Tostudy,assessandanalysetherelativesuccessoftheministriesanddepartmentsas measuredbytheresultsobtainedascomparedwith theirstatedobjectives;
• vi. To investigate and inquire into all matters relating to the assigned ministries and departments as they may deem necessary, and as may be referred to them by the House;
• vii. Tovet andreport on all appointmentswhere the Constitution or any lawrequires the National Assembly to approve, except those under Standing Order 204(Committee on Appointments);
• vili. Toexamine treaties,agreements andconventions;
• ix. To makereports andrecommendations to theHouse as often aspossible,including recommendationsofproposedlegislation;
• X. To consider reports of Commissions and Independent Offices submitted to the House pursuanttotheprovisionsofArticle254oftheConstitution;and
• xi. To examine any questions raised by Members on a matter within its mandate.

I.2MandateoftheCommittee

• 2.In accordance with the Second Schedule of the Standing Orders,the Committee is mandated to consider:
• a) The Judiciary;
• b) Tribunals;
• Access to Justice;
• (P Public prosecutions;
• e) Ethics, Integrity and Anti-corruption;
• f Correctionalservices;
• g) Community serviceorders andwitnessprotection;
• h) ConstitutionalAffairs;
• i) Sovereign immunity;
• i) Electionsincludingreferenda;
• k) Human rights;
• 1 Political parties; and
• m) The State Law Office including insolvency, law reform, public trusteeship, marriagesandlegaleducation.
• 3.In executing its mandate, the Committee oversights the following Ministries, Departments and Agencies:

CHAPTERONE

• TheJudiciary; a
• State Department for Correctional Services;
• b) Judicial Service Commission;
• (P StateLawOfficeandDepartmentof Justice;
• e) StateDepartmentforJustice,HumanRightsandConstitutional Affairs;
• f OfficeoftheDirectorofPublicProsecutions;
• g) Ethics and Anti-Corruption Commission;
• h IndependentElectoral andBoundariesCommission;
• i) Commission on Administrative Justice;
• j) Office of the Registrar of Political Parties;
• I1)Kenya National Commission on Human Rights;
• k) Witness Protection Agency;
• m)Kenya Law Reform Commission;and
• n)Council of Legal Education.

1.3 Committee Membership

• 4.The Committee comprises the following Members:

Chairperson

UDA Party

Hon. Murugara George Gitonga, CBS, MP Tharaka Constituency

Vice-Chairperson

Hon.MutuseEckomasMwengi,OGW,MP Kibwezi West Constituency

MCCP Party

Hon. Gladys Boss, MGH, MP Uasin Gishu Constituency

UDA Party

Hon. Onyiego Silvanus Osoro, CBS, MP South Mugirango Constituency

UDA Party

Hon.Wetang'ulaTimothyWanyoyi,CBS,MP WestlandsConstituency

ODM Party

Hon.Muchira Michael Mwangi,MP Ol Jorok Constituency

UDA Party

Hon.Makali John Okwisia,MP Kanduyi Constituency

FORD-Kenya

Hon.Aden Daud,EBS,MP Wajir East Constituency

Jubilee Party

Hon.CPA Suleka HulbaleHarun,MP Nominated Member UDM Party Hon.Maalim Farah,EGH,MP Dadaab Constituency

WDM-Kenya

Hon.FrancisKajwang'TomJoseph,CBS,MP Ruaraka Constituency

ODM Party

Hon. (Dr.) Otiende Amollo, SC, EBS, MP Rarieda Constituency

ODM Party

Hon. Muchangi Karemba, CBS MP Runyenjes Constituency

UDA Party

Hon. Mogaka Stephen M., MP West Mugirango Constituency

Jubilee Party

Hon. Siyad Amina Udgoon, MP Garissa County (CWR)

Jubilee Party

I.4CommitteeSecretariat

• 5.The Committee is facilitated by the following staff:

Mr.Ahmed Salim Abdalla ClerkAssistantI/HeadofSecretariat

Mr.RonaldWalala Senior Legal Counsel

Mr.AbdikafarAbdi ClerkAssistantIII

Ms. Jael Ayiego ClerkAssistantIII

Mr.Isaac Nabiswa Legal Counsel II

Mr.OmarAbdirahim Fiscal Analyst I

Ms. Vivienne Ogega Research OfficerIll

Mr. John Nduaci Serjeant-At-Arms

Mr.MeldrickK.Sakani Audio Assistant

Ms.Mary Kamande PublicCommunications OfficerIIl

Mr. Calvin Karung'o MediaRelationsOfficerIll

Mr. Silas Opanga Hansard Reporter Ill

CHAPTERTWO

2 OVERVIEW OF THE PENAL CODE (AMENDMENT) BILL (NATIONAL ASSEMBLYBILLNO.53OF2024)

2.1 Background

• 6.The Bill, sponsored by the Hon.Anthony Tom Oluoch, MP, was read a First Time in the Houseon4h June2025(Annexure3).Itwas thereaftercommitted totheCommittee in line with Standing Order I27(l) of the National Assembly Standing Orders.

2.2Summary of Legal Provisions

7. The Bill seeks to amend the Penal Code (Cap. 63) to repeal section 226 which provides for the offence of attempted suicide. 2. 8.Section 226 as readwith section 36of thePenalCodeprovides that anyperson who attemptstokillhimselfisguiltyofamisdemeanourwhichispunishablewithimprisonment for a term exceeding two years or a fine or both.

CHAPTER THREE

3 PUBLICPARTICIPATIONANDSTAKEHOLDERENGAGEMENTON THE BILL

3.1Legal Framework on PublicParticipation

• 10.ArticleIl8(1)(b)of theConstitutionprovides that:

"Parliamentshallfacilitatepublicparticipationandinvolvementinthelegislativeandother businessofParliamentanditsCommittees."

• 11.TheNational AssemblyStandingOrder127(3)and(3A)stipulatesthat:
• "(3)TheDepartmentalCommittee towhichaBilliscommittedshallfacilitatepublic
• (a)invitingsubmissionofmemoranda;
• (b)holdingpublichearings;
• (c)consultingrelevant stakeholdersinasector;and
• (d) consulting experts on technical subjects.
• (3A)TheDepartmentalCommitteeshalltakeintoaccounttheviewsandrecommendations u o oi s () ud nd a o

3.2MemorandaReceived on the Bill

• 12.Pursuant to the aforementioned provisions of thelaw,the Committee placed an advertisement intheprint media on12th June2025(Annexure 4) inviting the publicto submit memoranda by way of written statements on the Bill. Further, the Committee vide letterreferencedNA/DDClJLAC/2025/(116)dated7thOctober2025(Annexure5) invited stakeholders to submitwritten memoranda on the Bill.
• 13.To thisend,the Committee received four(4)memoranda from the Anjarwalla andKhanna LLP (ALN), Law Society of Kenya (LSK), National Gender and Equality Commission (NGEC) and Outreach for Action Kenya (NGEC).The memoranda are annexed to this ReportasAnnexure 6.
• I4. The ALN, LSK and Outrech for Action Kenya supported the Bill in its entirety while NGECsupportedtheBillwithadditionalrecommendations.
• 15.They submitted asfollows:

3.2.I Submissions in support of the Bill

16. ALNsupported the Bill in its entirety noting the following reasons: 2. (a)That section 226 of the Penal Code, Cap. 63 was declared unconstitutional by the High Court inKenya National Commission on Human Rights and 2 Others v Attorney-General;DirectorofPublicProsecutionsand 3Others(Interested Parties); Law Society of Kenya (Amicus Curiae) (Constitutional Petition E045 of2022)[2025]KEHC6(KLR)(ConstitutionalandHumanRights)(9January 2025) (Judgment) since it violates Articles 27, 28 and 43 of the Constitution of Kenya. 3. toinclude aperson diagnosed by a qualified mental healthpractitioner as aperson

with suicidal ideation orbehaviour.Byvirtue of this section,therefore,the law recognizes persons with suicidal behaviour as persons suffering from a mental illnesshenceitscriminalizationisunconstitutional.

• (c)Section226ofthePenal Code,Cap.63indignifiesanddisgracesvictimsof suicide ideationinthe eyesof the communityfor actionsbeyond their control,aviolation of Article 28 of the Constitution.Additionally, the section exposes survivors of suicide andpersons with suicidaltendencies tocriminalsanctioninsteadof healthcare thereby eroding the right to have the highest attainable standard of health as envisaged inArticle43(l)of theConstitution.

17. WWhile supporting the Bill, LSK and Outreach for Action Kenya noted that passing theBillwouldenableKenya,to:

• (a)Alignitselfwithother countries thathave takenstepstoreducetheglobal suicide rate byone third by2030 inline with theUnited Nations(UN)Sustainable Development Goals (SDGs) and the World Health Organization (WHO) global MentalHealthActionPlan.
• (b)Promote a mental health-based approachbecause individualswho attempt suicide are often in serious psychological distress,suffering from depression,trauma or hopelessness and criminal sanctions penalize suffering rather than addressing its rootcauses.
• (c) Promote compassion over punishment and reduce stigma and barriers to helpseeking as suicidepreventionrequirespsychological and medical intervention,not prosecution.
• (d) Fulfil its international obligation as a party to treaties such as the Convention on the Rights of Persons with Disabilities (CRPD) and the International Covenant on Civil and Political Rights (ICCPR) which require humane treatment of persons with mental illness.TheAfricanCommissiononHumanandPeoples'Rightsalso advocates non-punitive responses to mental health crises.
• (e)Alignwithconstitutionalconsiderations includingArticle24on the standardsof limitationofrights,Article 27onfreedomfrom discrimination,Article 28onthe right to dignity and Article 43(1)(a) on the right to the highest attainable standard ofhealth.

CommitteeObservation

18. The Committee agreed with the submissions of ALN, LSK and Outreach Kenya in support oftheBill.

3.2.2SubmissionswithAdditionalProposals

19. NGEC supported the Bill in its entirety noting that the High Court had already declared section 226 of the Penal Code, Cap. 63 unconstitutional. In addition, NGEC urged the National Assembly, to: 2. (a)Decriminalize theuse ofnarcoticdrugsorpsychotropicsubstancesbydeleting

(Control) Act, Cap. 245 whose penalty is excessive for persons who are addicted and who still fall back after either paying the fine or serving a jail term. Instead, suchpersonwho aremostlyyouthneedmedical interventionnotincarceration.

• (b) Fast-track implementation of the 2020 Report by the Taskforce on Mental Health (Mental Health and Wellbeing, Towards Happiness and National Prosperity). The Reportrecommended toParliamenttoamendtheexistinglaws todecriminalise suicide aswell assubstance use and abuse and insteadfacilitate care.Furthermore, the Report recommended harmonization of substance-use-related laws including the National Authority for the Campaign Against Alcohol and Drug Abuse Act, Cap. 122, Alcoholic Drinks Control Act, Cap. 122, Narcotic Drugs and Psychotropic Substance (Control) Act, Cap. 245 and the Tobacco Control Act, Cap.245A.

CommitteeObservation

20. Relating to decriminalization of the use of narcotic or psychotropic substances and recommendations by the Taskforce on Mental Health (Mental Health and Wellbeing, Towards Happiness and National Prosperity), the Committee observed that while the proposals were notable, the matters did not form part of the instant Bill and would thereforebeintroducedinaseparateBill.

CHAPTERFOUR

4 COMMITTEEOBSERVATIONS

21. Upon reviewing the Bill and the submissions received, the Committee observed that the Bill is a progressive, humane, and constitutionally aligned reform. To ensure decriminalization translates into meaningful prevention and care outcomes,section2C of the Mental Health Act obligates the national government in collaboration with county governments to develop the necessary physical and technological infrastructure for the care,rehabilitation and provision of health services to persons with mental illness which includespersonswithsuicidal ideationorbehaviour.

CHAPTERFIVE

5 COMMITTEERECOMMENDATIONS

22. The Committee, having considered the Penal Code (Amendment) Bill (National Assembly BillNo.53of2025)and the submissionsfrommembersof thepublic andstakeholders, recommends that the House approves the Bill without amendments.

NovQo2s

SIGNED

DATE.

HON.GEORGEGITONGAMURUGARA,CBS,MP CHAIRMAN DEPARTMENTALCOMMITTEEONJUSTICEANDLEGALAFFAIRS

Adoption Schedule

DEPARTMENTALCOMMITTEEONJUSTICEAND LEGALAFFAIRS

ADOPTIONOFTHECOMMITTEEREPORTONITSCONSIDERATIONOF THEPENALCODE(AMENDMENT)BILL(NATIONALASSEMBLYBILLNO.53OF2024)

We,theMembersoftheDepartmental CommitteeonJustice and LegalAffairshave,pursuant to Standing Order 199, adopted this Report of the Committee on its Consideration of the Penal Code (Amendment) Bill (National Assembly Bill No.53 of 2024) sponsored by the Hon. Anthony Tom Oluoch, MP, and affixed our signatures to affirm our approval and confirm its accuracy, validity and authenticity:

gar

1. Hon. Murugara George Gitonga, CBS, MP - Chairperson

Vrtuai

• 2.Hon. Mutuse Eckomas Mwengi, OGW, MP -Vice Chair

• 3.Hon. Gladys Boss, MGH, MP

MaG9

4. Hon. Farah Maalim, EGH, MP

5. Hon. Silvanus Osoro Onyiego, CBS, MP

6. Hon. Tom Joseph Francis Kajwang', CBS, MP

• 7.Hon. Muchangi Karemba, CBS, MP

• 8.Hon. Timothy Wanyonyi Wetangula, CBS, MP

• 9.Hon.(Dr.) Otiende Amollo, SC,EBS, MP

10. Hon. Michael Mwangi Muchira, MP

• 11.Hon.Aden Daud, EBS, MP

• 12.Hon.John Okwisia Makali,MP

13. Hon. Stephen M. Mogaka, MP

14. Hon. Amina Udgoon Siyad, MP

• 15.Hon.CPA Suleka Hulbale Harun,MP

Minutes

2

THENATIONALASSEMBLY THIRTEENTHPARLIAMENT-FOURTHSESSION-2025

DIRECTORATEOFDEPARTMENTALCOMMITTEES

MINUTESOFTHE9ISTSITTINGOFTHEDEPARTMENTALCOMMITTEE ONJUSTICEANDLEGALAFFAIRSHELDINCOMMITTEEROOMI7ON TUESDAYI8THNOVEMBER2025AT10:00AM

PRESENT

1. Hon.Murugara George Gitonga,MP-Chairperson 2. Hon.Mutuse Eckomas Mwengi,OGW,MP-Vice Chairperson 3. Hon. Gladys Boss,MGH, MP 4. Hon.Maalim Farah,EGH,MP 5. Hon. Muchangi Karemba, CBS, MP 6. Hon. Muchira Michael Mwangi, MP 7. Hon.AdenDaud,EBS,MP 8. Hon. Mogaka Stephen M. MP 9. Hon. Siyad Amina Udgoon, MP

ABSENTWITHAPOLOGIES

1. Hon. Onyiengo Silvanus Osoro, CBS, MP 2. Hon. Francis Kajwang' Tom Joseph, CBS, MP 3. Hon.(Dr.) Otiende Amollo, SC, EBS, MP 4. Hon. Timothy Wanyonyi Wetangula, MP 5. Hon.Makali John Okwisia,MP 6. Hon.CPA. Sulekha Hulbale Harun, MP

SECRETARIAT

1. Mr.Ahmed Salim

ClerkAssistantl

2. Mr.AbdikafarAbdi

ClerkAssistant IIl

3. Ms. Jael Ayiego

ClerkAssistantIIl

4. Mr.Walala Ronald

SeniorLegal Counsel

5. Mr.Abdirahim Omar

Fiscal Analystl

6. Mr. Isaac Nabiswa

Legal Counsel II

7. Ms. Vivienne Ogega

ResearchOfficerIll

8. Mr.MeldrickSakani

AudioOfficer

9. Mr. John Nduaci

Serjeant-at-Arms

AGENDA

1. Prayers 2. Preliminaries 3. Confirmation of Minutes of previous sittings 4. Matters arising

5. Consideration and adoption of the followingreporton thePenal Code(Amendment) Bill, (NA Bill no. 53 of 2024) sponsored by Hon. Anthony Tom Oluoch, MP 6. AnyOtherBusiness 7. Adjournment / Date of the Next Meeting

MIN.NO.DDC/LAC/418/2025:

PRELIMINARIES

The meeting was called to order at twenty-five minutes past ten o'clock followed by a word of prayer from the Chairperson and thereafter Members of the Committee introduced themselves. The agenda of the meeting was adopted, having been proposed by Hon. Maalim Farah,EGH,MP and seconded by Hon.Karemba Muchangi,MP.

MIN.NO.DDC/LAC/419/2025:

CONFIRMATIONOFMINUTESOFTHE PREVIOUSSITTING

The agenda was deferred.

MIN.NO.DDC/ILAC/420/2025:

CONSIDERATIONOFTHEREPORTON THEPENALCODE(AMENDMENT) BILL,2024

Upon reviewing the Bill and the submissions received, the Committee observed that the Bill is a progressive,humane,and constitutionally aligned reform.To ensure decriminalization translates into meaningful prevention and care outcomes, section 2C of the Mental Health Act obligates the national government in collaboration with county governments to develop the necessary physical and technological infrastructure for the care, rehabilitation and provision of health services to persons with mental illness which includes persons with suicidal ideation orbehavior.

CommitteeRecommendation

The Committee, having considered the Penal Code (Amendment) Bill (National Assembly Bill No.53of2025)andthesubmissionsfrommembersof thepublic andstakeholders,resolved torecommendthattheHouseapprovestheBillwithoutamendments.

AdoptionoftheReport

The Committee report was adopted, having being proposed by Hon. Karemba Muchangi, MP and seconded by Hon. Farah Maalim, MP.

MIN.NO.DDC/ILAC/421/2025:

ADJOURNMENT

There being no other business, the meeting was adjourned at twenty minutes past eleven o'clock.Thenext meetingwill beheld onnotice.

SIGNED:...

.....DATE:....

(CHAIRPERSONHON.MURUGARAGEORGEGITONGA,CBS,MP)

Penal Code (Amendment) Bill, 2024

SPECIALISSUE

Kenya Gazette Supplement No.21l (National Assembly Bills No.53)

REPUBLIC OF KENYA

KENYA GAZETTE SUPPLEMENT

NATIONALASSEMBLYBILLS,2024

NAIROB,29thNovember,2024

CONTENT

| Bill for Introduction into the National Assembly- | PAGE | |-----------------------------------------------------|--------| | The Penal Code(Amendment) Bill,2024 | 1103 |

NATIONAL ASSEMBLY RECEIVED

19FEB2025

DIRECTOR LEGAL SERVICES P.O.Bo41842-00100,NAIROBI

1103

THEPENALCODE(AMENDMENTBILL,2024

ABill for

AN ACT of Parliament to amend the Penal Code

ENACTED by theParliament ofKenya,as follows-

1.This Act may be cited as the Penal Code Shon title. (Amendment)Act,2024.

2.The Penal Code Cap 63 is anended by repealing Repeal of section 226of cap63 section 226.

MEMORANDUMOFOBJECTSAND REASONS

The principal object of this Bill is to amend the Penal Code to delete

section 266.The proposed amendment will decrimimalize suicide and enable attempted suicide to be secn as a serious problem requiring menta! health interventions and not be treated as a criminal offence.

Reducing the global suicide rate by one third by 2030 is a target of both the United Nations (UN) Sustainable Development Goals (SDGs) and the World Health Organization (WHO) global Mental Health Aetion PlanVarious countries have committed to taking measures in this direction.

TheWoridHeaithOrganizaion(WHO)policy briefon decriminalization of suicide provides that an impedimemt to meeting this goal is the fact thal suicide and suicide alttempts remain illegal in at least twenty three countriesworidwide.Decriminalization ot suicide and suicide attcmpts represents one critical step govemments can take n heir efforts to prevent suicide. Further,criminalizing suicide will not prevent people from acting on suicidal thoughts,it simply stops them from reaching out and seeking help in times ofacute crisis.

Statement on the delegation of legislative powers and limitation

of fundamentalrights and freedoms

This Bill does not delegate legislative powers nor does it limit

fundamental rights and freedoms.

Statement of how the Billi concerns county governments

The Bill does not affect the functions of County governments as set Out in the Fourth Schedule to the Constitution and is therefore not a Bill

concerning county governments.

Statement as to whether the Bill is a money Bill within the meaning ofArticle 114 of the Constitution

The enactment of this Bill shall not occasion additional expenditire

ofpublic funds.

Dated the 28th November,2024.

Section 226of Cap 63 which it is proposed t0 amend

226.Attempting suicide

Any person who aftempts to kill himself is guilty ofa misdemeanour.

Advertisement inviting the public to submit memoranda on the Bill

Chronology Mohammed Amin,theDClboss,contradicted the lG'stimeline,saying Ojwang'wasbooked at9.32pm

Senatorsnow accuseKanja ofcover-up m Ojwang death

Policeboss saystheyweremisled toclaim teacherand bloggerhithisheadincell as lpoarevealsCCTVtamperingatstation

BYCOLLINSOMULO

enators have questioned Inbert Ojwang'in pohce custody.ac upthe matter. death of 31-year-old teacher Al cusing him of attenptingto cover of events surrounding the ctor-GeneralofPclice Thisfollows the naming of the do.RabudoKiundigei art the night Qjwang'was held.The officers named are Sergeants SiConstables Dennis Kinyoni,Mil. tonMwanzi,andBoniface Rabu police officers involved in the ar rest anid allegations that CcTV Station were tamperedwith on gei and Wesley Kirui,and Police cameras at Nairobi Central Police tached to Mawego Police Station

Wednesday lawmakers called for Deputy Inspector-General Eliud During a Senate session on Lagat,who filed the conplaint ni and Mwanzi are based in NaiIn Homa Bay Countywhile Kinyorobi.

Inspector-General of PoliceDouglasKanja and Interior CSKipchum ba Murkomen at the Senate yesterday.DENNIS ONSONGOINATION

crime investigatorsled by Senior Superintendent of PoliceHillary Mutai.They identified five sus. pects-OjwangKevinMoinde (arThe case was assiged to cyber rested on June 6),Dorcas Mawia

REPUBLCOFKENYA THIRTEENTHPARLIAMENT-FOURTHSESSION(2025) THENATIONALASSEMBLY

INTHEMATTEROFARTICLETIBCD[D]OFTHECONSTITUTION AND

INTHEMATTEROF CONSIDERATIONBYTHENATIONALASSEMBLYOFTHEPENALCODE [AMENDMENT] BILL[NATIONALASSEMBLYBILLNo.53OF2024]

antnvolvement in the legislative andother business of Parliament and its Committees.and National yStandingOrder 127(3]requiresHouseCommittees consideringBills tofacilitate pubic participation:

AND WHEREAS,the Penal Code[Amendment] Bll(National Assembly Bill No.53of 2024]wasreada First Time on4 June 2024and referred to the Departmental Committeeon Justice and Legal Affairs for. consideration andreporting to the House:

IISNOTIFIED that the Penal Code[Amondment] Bill[National Assembly Bill No.53of2024]isa Bi sponsored by Hon.Anthony Tom Oluoch,MP seeking t aend the Penat Code,Cap.63 to delete section 226.The proposed amendment seeks to decriminafize the offence of attempted suicide.

NOWTHEREFORE.in compliance withArticle11B(1](b)oftheConstitution andStandingOrder 127(3].the Code[Amendment]Bill[National Assembly BillNo.53of 2024] to the Departmental Committee onJustice Clerkof theNationalAssembly hereby lnvitesthepublicand stakeholdersto submit memoranda onThe Penal and Legal Affairs.

CopiesftheBllarevalableattheNatnalAssemblyTableOfficeMainPalametBuidingsndonww padioment.ge.ke/the-nationai-assombly/house-business/bills.

The memoranda may be forwerded to the Clerk cf the National Assembly,P.0.Box 41B42-00100, Nairobihand-deliveredto theOffice of the Clerk,MainParliament BuildingsNairobi;oemailed tocna parliament.go.keto bereceived on or befere Tuesday,24u June 2025at 5.00p.m.

CLERKOETHENATIONALASSEMBLY S.NJOROGE 11June2025

Ranjatold the Senate that thesa rectorate of Criminal Investigations(DCl)received a complaint ga began onJune 4 when the Difrom Mr Lagat,daiming that de himon the socialmediaplatform famatory contentallegingcoraupService had bcen posted about tion within theNationalPolice X.

Douglas Mangiri,and PeterMbu gua.Kanja said Ojwangwas arrested on June 7in Homa Bay lce Station.arriving at 9.17pn.He called his wife at9.24pm and was and taken toNairobi Central Po tookedinto acellat 9.35pm in apparentgoodphysical andnental condition.

sion ofevents. Senators questioned this ver-

found him unconscious the foi toMbagathi Hospital.where he was declared dead on arrival. lowing morningand rushedhim However,officers reportedly

Migori Senator Eddy Oketch asked:who beat Mr Ojwang'to Our forensic team found that while the CCTV was previouslyfunctional, the power cable had been disconnected AnnWanjkupoavice-chrperson the condition n which he was found?TheIGsays hehithis head on the wall-who told bim that, and does hestill stand bythat?"

Nyamira Senator Okong'o washe booked aloneif there was Omogeni urged the IG toprovide ters to the police station."why no intention to cover up? movementsfromDclheadquarCCTVfootageshowing Ojwang's

Methu queried the decision to Nyandarua Senator John take Ojwang'to Mbagathi Hosprtal rather than the coser and bet Hospital,while also accusing the IGof shieldinghis deputy ter-equippedKenyatta National

ty (lpoa)and the DCi saying inmost questions to the Independent Policing Oversight Authori Kanja,in response,deflected vestigations were ongoing He ad mitted that n offcer,whom he did notname,hadmisled theer vice by stating that Ojwang'hit his head ona wall,prompting an iu tal NPS statement.

"Our forensic team found that while the CcTV waspreviously functional.the power cable had been disconnected

Ann Wanjiku, the Ipoa vice-chairperson,said prelim nary findings and a post-mortem said that lpoa found the police ruled out suicide and pointed to a possibl~cover-up.Ms Wanjiku station's CCIV system had been tampered with.

Mohammed Amin,the DCI boss.contradicted theIG's time line,saying Ojwangwasbooked at9.32pm and spoke with his par scribed the arrest as"hurnane" ents at 9.34pn.He said the sus pect was in good health and de

fice.This case could spark nation al outragejust like the2011Tuni sia uprising.Resign. wale said-"You're not fit to hold ofKakamega Senator Boni Khal

Interior Cabinet Secretary Kip chunba Murkomen told the Sen ate that thegovernunent would the truth.However,his remarks dedicate allresources to uncover drew criticismfrom several senatorswhocalledforhisresigmation.

geiconcluded:The Intenor Min istry suffers from aleadership cr sis.If anyone should esignitis Nandi Senator Samson Cherar Murkormen."

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THENATIONALASSEMBLY 13TPARLIAMENT-FOURTHSESSION-2025

INTHEMATTEROFARTICLETIS(D (B) OFTHE CONSTITUTION AND

INTHEMATTEROF CONSIDERATION BY THENATIONALASSEMBLYOFTHE PENAL CODECAMENDMENT] BILL [NATIONALASSEMBLY BILL NO.530F2024)

NVITATIONTOSUBMITMEMORANDA

WHEREAs,Article i8{1] [b] of the Constitution of Kenya requires Parliament to facilitete public participation andivolvementinthelegislative and othec business of PartiamentanditsCommittees.and participation:

AND WHEREAS.the Fenal Code[Amandment] Bill[National Assmbly Btll Na.53of 2024] was reeda FirstTime on4June 2024andreferred to the Dapartmental Commitee onJustice and Legal Affairsfor consideration andreporting to the House:

sponsored by Hon.Anthony Tom Oluoch,MP seeking to amend thePenal Code.Cap.63 to delete section ITIS NOTIFIED thet the PenalCode[Amendment] Sill[NationalAssemblyBillNo.53of2024]isa Bll 226,Tho proposed amendment seeks to decriminalize the offence of atternpted suicide.

NOWTHEREFORE,Incompliance withArticle81](b]of theConstitutionandStandingOrder127[3].the Clerk oftheNationalAssenblyherebyinvitesthepublicand stakeholdarstosubmit memorendaonThePenal Lugal Attairs.

CopesftheBllaravaableattheNationAsseblyTableOiceManPalamentBudingsndonw olianent.so.ko/the-nntiona-assanbly/hioua-hasinos/blle.

Nairobihand-delivered totheOficeofthe Cierk,MainParlimentBulldings,Nairobiremailedto The mernoranda maybe forwarced to theCleriof the NationalAssembly,P.0.Box41842-00100, cnsinmnt.keto bereceived onorbeforeTuesday,24 June 2025 at 5.00 p.m.

THEENERGYACT,2019

MOMBASA CEMENTLTD

APPLICATIONFORELECTRICPOWERFOROWNUSE

NOTICE is hereby given that Mombasa Cement Ltd,having itsregistered office at Mikindani,Mombasa-Nairobi road,Mombasa,P.0Box83594-80100,Mombasa in the Republicof Kenya,Mombasa Cement Ltd.,pursuant to the provisions of Section 119[3]of theEnergyAct,2019,willon4July2025.makeanapplicationto theEnergy &Petroleum Regulatory Authority for the Electrc Power ElectricPower Genaration Licence,

Thecogenerationplant willsupplymanufacturingloadswhileenhancingefficiency in the manufacturing process.This generationplant will bein Vipingo at Mombasa Cement manufacturing plant. Waste heat gas recovered in the manufacturing nothave adverse effecton anyPublicor Local Authorities.Companies,personsorbodies of persons within the areas of the undertaking.

A copy of the application [subject to confidentiality considerations]will be available [oncelodged] for inspection by the public attheregistered office of the applicant.

Any public or localauthority.company,person or bodyofpersons desirous ofmaking anyrepresentation on or objection to the applicationmust do so byaletter addressed to the Energy&Petroleum Regulatory Authorityand marked onthe outside of the cover enclosingitElectricPower Licence Objection'onorbefore the expiration of Thirty30] orobjection shall be forwarded to the applicant. daysfromthe dateof applicationasstatedinthe notlce andacopyof suchrepresentation

Dated9June2025

Kirtan H.Patel

Director,Mombasa Cement Ltd.

S.NIOROGE CLERKOF THENATIONALASSEMBLY 1*June2025

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REPUBLICOFKENYA

THIRTEENTHPARLIAMENT-FOURTHSESSION(2025]

THENATIONALASSEMBLY

IN THE MATTEROF ARTICLE 118C1D Cb) OF THE CONSTITUTION AND

INTHE MATTEROF CONSIDERATION BY THE NATIONALASSEMBLY OF THE PENAL CODE CAMENDMENT BILL(NATIONAL ASSEMBLY BILL No.53OF2024]

INVITATIONTOSUBMITMEMORANDA

WHEREAS,Article 118[1](b]of theConstitution of Kenya requiresParliament tofacilitatepublicparticipation and involvementinthelegislativeandotherbusinessofParliamentand itsCommittees,andNational

AND WHEREAS, the Penal Code [Amendment) Bill (National Assembly Bill No. 53 of 2024] was read a First Time on 4th June 2024 and referred to the Departmental Committee on Justice and Legal Affairs for considerationandreportingtotheHouse;

IT IS NoTIFIED that the Penal Code (Amendment) Bill (National Assembly Bill No. 53 of 2024] is a Bill sponsored by Hon.Anthony Tom Oluoch, MP seeking to amend the Penal Code. Cap. 63 to delete section 226.Theproposed amendment seeks to decriminalizethe offence of attempted suicide.

NOW THEREFORE,in compliance with Article 118[1] (b] of the Constitution and Standing Order 127[3], the Clerkof the National Assembly herebyinvites the public and stakeholdersto submit memoranda on The Penal Code[Amendment]Bill[National AssemblyBill No.53of2024]to theDepartmental CommitteeonJustice and Legal Affairs.

Copiesof theBill are available at theNational AssemblyTableOffice,MainParliamentBuildings and onwww. parliament.go.ke/the-national-assembly/house-business/bills.

The memoranda may be forwarded to the Clerk of the National Assembly, P.0.Box 41842-00100, Nairobi; hand-delivered to the Office of the Clerk,Main Parliament Buildings,Nairobi; or emailed tocna@ parliament.go.ke to be received on or before Tuesday, 24th June 2025 at 5.00 p.m.

S.NJOROGE CLERKOFTHENATIONALASSEMBLY 11thJune 2025

C 4

Letter from the Clerk of the National Assembly requesting stakeholders to submit views on the Bill

P.O.Box41842-00100 Nairobi,Kenya MainParliamentBuildings

Telephone:+254202848000 ext.3300

Email:cna@parliament.go.ke

www.parliament.go.ke/the-national-assembly

Whenreplying,pleasequote:

Ref:NA/DDC/JLAC/2025/(116)

Dr.David G Kariuki ChiefExecutiveOfficer KenyaMedicalPractitioners&DentistsCouncil WoodlandsRd,Hurlingham Nairobi

Dr.Davji Bhimji Atellah

SecretaryGeneral KenyaMedical PractitionersPharmacists&Dentists'Union 5Floor,Blue Violets Plaza,Kindaruma Lane Nairobi

Mr.Abdirahim Ismail,OGW

ExecutiveDirector Inter-religiousCouncil ofKenya MararoAvenue off GitangaRoad Nairobi

Dear

D Alelah

RE:

INVITATION BY THE DEPARTMENTAL COMMITTEE ON JUSTICE AND LEGALAFFAIRS TO SUBMIT VIEWS ON THE PENAL CODE (AMENDMENT) BILL(NATIONAL ASSEMBLY BILL NO.53 OF 2024) SPONSOREDBYTHEHON.ANTHONYOLUOCH,MP

TheDepartmental CommitteeonJusticeandLegal AffairsisestablishedpursuanttoStanding Order216of theNationalAssemblyStandingOrders,and ismandated to inter alia,study and review all legislation referred to it.

Asyou are aware,thePenal Code(Amendment) Bill(National Assembly Bill No.53of 2024) sponsored by Hon.Anthony Oluoch,MP is before the Committee for consideration and reporting to theHouse.TheBill seeksto amend thePenal Code todeletesection266,the proposed amendmentwill decriminalize suicideand enable attemptedsuicidetobe seenas a

ArticleI18(1)(b)of the Constitution of Kenya and National AssemblyStandingOrder 127(3) requireParliamenttofacilitatepublicparticipationandinvolvementinthelegislative andother business of Parliament and its Committees.Due to the great publicinterest in the Bill,the Committeeresolvedtoreceivewrittensubmissionsfrom critical stakeholders.

7hOctober,2025

In thisregard,theCommictceinvltesyoutosendawrltten submissionon theBill byTuesday 14Octobcr2025at10:00am.

You arerequestedtoprepareyour wrltten submisstonsIn a matrix forrnat thatIndicates the specific clause,proposcd amendment and justificatlon.Written submissions may be scnt to the Committcethrough the Office ofthe Clerk ofthe National Assembly via email cna@parliament.go.ke.

Hard copies of theBill are available at theNational AssemblyTable Office,MainParliament Building, while an clectronic copy may be accessed on the Parliamcnt wcbsite: www.parliament.go.ke/the-national-asscmbly/house-billsforreference.

Our Liaison Officers on this matter are Mr.AbdikafarAbdi who may be contacted on tel. no.0715456503oremail:ddc@parliament.go.kc.

Yours

JEREMIAHNDOMBI,MBS For:CLERKOFTHENATIONALASSEMBLY

P.O.Box41842-00100 Nairobi,Kenya MainParliamentBuildings

Telephone:+254202848000 ext.3300 Email:cna@parliament.go.ke

www.parliament.go.ke/the-national-assembly

When replying,please quote: Ref:NA/DDC/JLAC/2025/(116)

Dr.David G Kariuki ChiefExecutiveOfficer Kenya Medical Practitioners&DentistsCouncil WoodlandsRd,Hurlingham Nairobi

Dr.Davji Bhimji Atellah

SecretaryGeneral Kenya Medical PractitionersPharmacists&Dentists'Union 5Floor,BlueVioletsPlaza,Kindaruma Lane Nairobi

Mr.Abdirahim Ismail,OGW ExecutiveDirector Inter-religiousCouncil ofKenya MararoAvenueoff Gitanga Road Nairobi

Dear

M. Abd.iah.m

RE:

INVITATION BY THE DEPARTMENTAL COMMITTEE ON JUSTICE AND LEGAL AFFAIRS TO SUBMIT VIEWS ON THE PENAL CODE (AMENDMENT) BILL(NATIONAL ASSEMBLY BILLNO.53 OF 2024) SPONSOREDBYTHEHON.ANTHONYOLUOCH,MP

TheDepartmental CommitteeonJustice and Legal Affairsis establishedpursuanttoStanding Order216of theNational AssemblyStandingOrders,and ismandated tointer alia,'study andreviewall legislationreferred to it.'

Asyou are aware,thePenal Code(Amendment) Bill (National Assembly BillNo.53of 2024) sponsored by Hon.Anthony Oluoch,MP is before the Committee for consideration and reporting to the House.The Bill seeks to amend thePenal Code to delete section 266,the proposed amendment will decriminalize suicide and enable attempted suicide to be seen as a seriousproblemrequiringmentalhealth interventions andnotbe treated as a criminal offence.

Article I18(1)(b)of the Constitution of Kenya and National Assembly Standing Order 127(3) requireParliamenttofacilitatepublicparticipationandinvolvement in thelegislative andother business of Parliament and its Committees.Due to the great public interest in the Bill, the Committeeresolved to receivewritten submissions from critical stakeholders.

7October,2025

In this regard, the Commlttee Invites you to send a written submission on theBill by Tuesday 14October2025at10:00am.

You arercquested to prepareyour wrltten submisslons In a matrlxformat that indicates the specinc clause, proposcd amendment and justification. Written submissions rnay be sent to the Comittee tlrough the Office ofthe Clerk of the National Asscrnbly via cmail: cna@parliament.go.ke.

Hard copies ofthe Bill are available at the National Assembly Table Office,MainParliarnent Building.while an clectronic copy may be accessed on the Parliament wcbsite: www.parliament.go.kc/the-Dational-asscmbly/house-bills forreference.

Our Liaison Officers on this matter are Mr.Abdikafar Abdi who may be contacted on tel. no.0715456503oremail:ddc@parliament.go.kc

Yours

JEREMIAHNDOMBI,MBS For:CLERKOF THENATIONALASSEMBLY

Memoranda by Stakeholders

3

NGEC/CS/LEGAL/VOL.II(12)

Mr.Samuel Njoroge The Clerk of theNational Assembly Clerk's Chambers Parliament Building P.O.B0x41842-00100 NAIROBI

Email:cna@paliament.qo.ke

Dear

M

National Gender and Equality Commission

1stFloor,SolutionTech Place,5LongonotRoadUpper Hill,Nairobi P.O.Box27512-00506Nairobi,Kenya.

Landline:+254(020)3213100

Mobile:+254(020)375100

Toll Free:0800720187

Email:info@ngeckenya.org

www.ngeckenya.org

000

AbeuaqoWaollee

pls Pocess

24thJune 2025

20

COMMENTSONTHEPENALCODE(AMENDMENT)BILLNO.53OF2024

Reterence is made toyour call for the submission of memoranda onThePenal Code(Amendment) Bill, 2024

In linewithits mandate,theCommission presents toyou a memoranda anayzing theproposed bil! and making proposalswhere necessary.

Yours

NATIONAL ASSEMBLY

RECEIVED

24JUN2025

PurityNgina,PhD,MBS COMMISSIONSECRETARY/CEO

P.0.B0X41842,NA1R0BI

CLERK'S OFFICE

MEMORANDA:PENALCODE(AMENDMENT)BILLNo53OF2024

| S/NO | CLAUSE | COMMENTS | RECOMMENDATIONS | |--------|---------------------------------------------------------------------------------------------------------------------------|-------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------|---------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------| | I. | Theproposed AmendmentBill secks toamendThePenalCodeCAP63to deletesection226todecriminalize the Offence ofattemptedsuicide | The Commissionis infull support of theproposal to deleteSection 226so thatattemptedsuicide is no longer considered an offence, toallowpeopleincrisis to seek help The High Court has already declaredthe said section unconstitutional in HCCHRPET/E045/2022 0n9h January,2025 https://icj-kenya.org/wp content/uploads/2025/o1/Const itutional-Petition-No-Eo45-of- 2022.pdf | Regarding the Uriggers of suicide.the Commissionwould like tocallupon the Houseinadditiontodecriminalizing alttempted suicide toalso-: 1.Consider decriminalizing the use of Narcotie drugs or psychotropic substances by deleting section 5(1)(a)and (b)of the Nareotie Drugs and Psychotropic Substances (Control) Act,CAP 2.45. The penalty for the offence is two hundred fifty thousand shillings or a termofimprisonment ofnotless than fiveyears or both such fine and imprisonment,which is excessive for personswhoareaddictedandwho still fall back after eitherpaying the fine or serving a jail term. |

| The rationale would be the same in that these are persons,mostly youth, who needintervention, and incarceration is not the solution. 2.Fast-track the implementation of thereport onmental healthby the task force,which thePresident set upfollowingaCabinet approvalin2020 https://mental.health.go.ke/downlo ad/mental-health-and-wellbeing- towards-happiness-national- prosperity-a-report-by-the- taskforce-on-mental-health-in- kenya/?wpdmdl=253&refresh=67cef 30953a1b1741615881 The report states that manyKenyans were specific on thelaws,indicating the need to“amend the law to decriminalize suicide”and also to “decriminalize substance use and abuse”tofacilitate care The Taskforce also met members of the relevant Parliamentary | |-------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------|

| Committees,and as per the report. the views werewell received. The report also reconmends that Parliament harmonize substanee use-related laws,including the National Authority for the Campaign Against Alcoholand Drug Abuse (NACADA) Act,the Aleoholie Drinks Control Act.the Narcotie Drugs and Psychotropie Substance (Control) Act.and theTobaceo Control Act. | |------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------|

Legal Deficiency in Criminalizing Attempted Suicide

The principle ofmensreais foundational tocriminal law,requiring thatcriminal liability attach only where there exists a"guiltymind"-a deliberate intention to commit a wrongful act.As establishedinKenyanjurisprudence and codified in section9of thePenal Code:

"Subject to the express provisions of this Code relating to negligent acts and omissions,a person isnot criminallyresponsiblefor an act or omissionwhichoccursindependently of the exercise of his will..."

Section12ofthePenal Codeprovides:

"A person is not criminally responsible for an act or omission if at the time of doing the actor making the omissionheis through any disease affectinghismind incapable ofunderstandingwhat he is doing..."

This creates an internal legal contradiction-if attempted suicide occurs during a mental health crisis(as recognized by theMental HealthAct),thenby thePenal Code's own standards,mensrea is absent.

Attempted suicidefundamentally lacks the essential elements of criminal mens rea because:

• 1.No Intent to Harm Others:The act is entirely self-directed with no intention to cause harm tosocietyorotherindividuals
• 2.Impaired MentalState:TheMental Health Actrecognizes thatpersons suffering from mental disordermay be"incapable of expressing himself aswilling or unwilling to receive treatment"(section14)
• 3.Medical Emergency,Not Criminal Choice:The act occurs during a mental health crisis, notasa deliberatecriminal decision

Individualswhoattempt to take theirown livesoftendosointhe throes ofmentalillness,extreme psychological pain,or diminished capacity.These circumstances substantiallyimpair their ability toform therequisitecriminal intent.Their actions arenotmotivated bymalice,recklessness,or intent tooffend the stateor society,butratherby aninward-facing,non-criminal urge toescape suffering.

As a result,prosecuting suicide attemptsunder criminal law contradicts establishedprinciples of culpability,renderingtheclassificationof such conduct as a criminal offenceboth inappropriate and unjust.

From a legal andmedical standpoint,suicide and attemptedsuicidearesymptomsof underlying psychological distress or mental illness.Criminal law is ill-suited to address such conditions.A rights-based frameworkwould treatsuicide attempts asmedicalemergencieswarrantingcare,not incarceration.

Globaland Regional Trends

Countries around the world are increasingly recognizing attempted suicide as a public health issue,not a criminal one.Examples include:

• ·United Kingdom:Decriminalized attempted suicide through theSuicideAct 1961.
• India:Repealed Section 309 ofits Penal Code through the Mental Healthcare Act.2017.
• Ghana and South Africa:Are invarious stages of legal reform to decriminalize suicide attempts.
• WHO and UN Guidance:Both bodiesrecommenddecriminalization to reducestigma and improve access to mental health services.

Benefits To Kenvan Citizens

1.Alignment with Mental Health Act Framework:

The amendment will harmonize the Penal Codewith the Mental Health Act byreinforcing provisions for voluntary and involuntarypatient admission and enabling emergency interventionforindividuals experiencing acutemental distress.

2. Human Rights Compliance:

Decriminalizationupholds constitutional rightsby affirmingtheright to health and dignity. protecting individuals from cruel or degrading treatment.and recognizing mental health as equally deserving oflegal and medical attention as physical health.

3.From Criminal toMedicalFramework:

The amendment redefines suicide attempts not as crimes warranting punishment but as medical emergencies that require compassionate intervention and professional care.

4.ImprovedAccess toHealthcare:

The amendment will decriminalize attempted suicide.encouraging individuals to seek mental healthsupportwithoutfear ofprosecution,enabling healthcareproviders tofocus on care rather than criminal reporting,and reducing the stigma surrounding mental illness.

5.Reduced Burden on the Criminal JusticeSystem:

Resources can beredirected to treatment and preventionrather thanprosecution.

JustificationsForDecriminalization

The decriminalization of attempted suicide is justified on multiple grounds.including legal. medical.human rights,and public policy considerations,all of which demonstrate that criminal sanctions are inappropriate and counterproductive in addressing suicidal behavior.

The following points outline the key reasons why the proposed amendment is necessary and timely;

Medical Evidence

Decriminalization is supported by medicalresearch showing that attempted suicide is linked to treatable mental health conditions,criminal sanctions are ineffective deterrents,and medical interventions significantlyreducesuiciderisk.

Human RightsImperatives

Criminalizing attempted suicideviolates the right to health,undermines the dignity ofvulnerable individuals,and perpetuates discrimination against those with mental health conditions.

PublicHealth Benefits

Decriminalization promotes help-seeking behavior,enablesimproved data collection for suicide prevention,and facilitates more efficient allocation of resources toward healthcare rather than prosecution.

Social Justice Considerations

Thereform protectsmarginalizedpopulationswhomaybe disproportionately affected,minimizes the emotional and legal burden on affected families,and encourages community-based mental health responses over punitive measures.

Implementation Considerations

To ensure that the proposed legal reform yields its intended benefits,the decriminalization of suicide and attempted suicide should be accompanied by coordinated policy,institutional,and service delivery measures.These considerationswill ensure that the transition from a punitive to a healthcare-based approach is effective,sustainable,and grounded in the principles of public heaith and human dignity.

Strengthening the MentalHealth CareSystem

infrastructure.Thisincludes:

• Expansion of Mental Health Services:Increase access to affordable.community-based and inpatientmental healthfacilities across counties.especiallyinunderserved areas.
• CapacityBuildingforHealthWorkers:Provide continuous trainingand sensitizationfor healthcare professionals-medical officers,nurses,social workers,andpsychologists-on the identification,management,and follow-up of individuals presenting with suicidal ideation or afterasuicideattempt.
• Crisis Intervention and Emergency Care:Establish and fund national and county-level suicideprevention helplines,mobilecrisisresponseteams,and24-hour emergencymental health services.
• Community Sensitization and Education:Roll out public education campaigns to reduce stigma.promote mental wellness,and encourage individuals to seek help carly. Community healthvolunteers should be integrated into awareness and referral sy stems.

Harmonization with the Mental Health Act

The operationalization of the amendment must align with and enhance the provisions of the Mental Health Act (Cap.248) to ensure continuity of care and legal coherence. Specifie areas of integration include:

• Admission,Treatment,and Discharge Protocols: Ensure clear referral pathways and post-crisis care plans for persons admitted under voluntary.involuntary,or cmergency circumstances as provided in the Act.
• Family and Community-Based Support: Utilize provisions in the Mental HealthAct that allow for the care of persons with mental disorders by relatives or guardians.with appropriate oversight.to ensure recovery in familiar.non-institutional environments.
• Oversight by the Kenya Board of Mental Health:Strengthen therole of theBoard in monitoring facilities,ensuring treatment standards,and investigating complaints related to care of individualswith suicidal behavior.

Policy and Legislative Framework Integration

In addition tolegalamendments,thegovernmentshould develop a National SuicidePrevention Strategy that ineludes clearprotocols,resource allocation,and inter-sectoral collaboration among ministries (Health,Education,Interior,Youth,and Social Services).The Mental Health Policy and related regulations should be revised to reflect decriminalization and promote a public health response.

Monitoring,Evaluation.and Accountability

• Establishsystems fordata collectionon suicide and attempted suicide to informpoliey and guide targeted interventions.
• Implement regular audits and public reporting mechanisms to assess the impact of decriminalization on healthcare uptake.stigma reduction.and suicide rates.
• Foster civil society and professional body involvement in monitoring and advocacy to

Conclusion

This memorandum strongly recommends the passage of the Penal Code (Amendnient) Bill No. 53 of 2024, as it represents a compassionate, evidence-based approach to addressing suicide and mental health inKenya.

Theamendmentwill transformKenya's legalframeworkfromone thatcriminalizesmental health crises to one that treats themwith themedical attention and human dignity they deserve.This change will save lives,strengthen families.and build a more just and compassionate society.

Dear Sir,

STMA

Awsasie

24th June,2025

2776125

The Clerk

HoenayoWaeile

RECEIVED

National Assembly Parliament Buildings P.O.Box41842-00100 Nairobi,Kenya

26JUN2025

bls

puocess

TEES

RE:SUBMISSION OFMEMORANDUM ON THE PENAL CODE(AMENDMENT) BILL(NATIONALASSEMBLY BILLNO.53OF2024)

On behalf of Outreach for Action Kenya,an organization currently undergoing registration as a Company Limited by Guarantee and committed to civic education,legal reform,andpublic participation,we hereby submit the enclosed memorandum in respect of the Penal Code (Amendment) Bill (National Assembly Bill No. 53 of 2024).

This memorandum is presented pursuant to the public invitation for comments on the said Bill and reflects our considered position in support of the proposed deletion of Section 226 of the Penal Code,which seeks to decriminalize attempted suicide.

We respectfully request that thismemorandum be considered as part of the official public participation record for the Bill.

Thank you for your attention and continued facilitation of public engagement in the legislative process.

Yours faithfully,

Isabella Mandi-Director(proposed),OAK

ID No.13414367

NATIONAL ASSEMBLY RECEIVED

ikmmanduku@gmail.com

0722725409

26JUN 2025

Cliff Nyandusi-Director(proposed),OAK ID No.39045980

CMN

CLERK'S OFFICE P.O.B0X41842,NAIR0BI

cliffnyandusi3@gmail.com

0725405914

Submitted on Behalf of Outreach For Action Kenva(OAK)**

**Outreach For Action Kenya (OAK) is currenty umdergoing registration as a Company Limited by Guaranteeunder theCompaniesAct,2015.Theorganizationiscommitted tocivicecucation,publicpolicy engagement,and legal reform advocacy inKenya.

MEMORANDUM ON THE PENALCODE(AMENDMENT)BILL,(NATIONAL ASSEMBLYBILLNO.53OF2024)

Introduction

This memorandum is submitted in support of the Penal Code (Amendment) Bill (National Assembly Bill No. 53 of 2024). which proposes the deletion of Section 226 of the Penal Code (Cap. 63). thereby decriminalizing attempted suicide in Kenya. This change reflects a progressive shift toward a health-based.rather than punitive,approach to mental health and aligns Kenya with emergingglobal standards and bestpractices.

Background and Historical Context

The criminalization ofattempted suicide inKenya,underSection 226ofthe Penal Code.originates fromcolonial-eraBritishlawsthatreflectedmoralandreligiousdoctrinewhichcondemnedsuicide against the state and a violation of divine law.rather than a complex mental health issue.

Today, these views are considered archaic and unscientific.The continued penalization of individuals in psychological crisis serves no rehabilitative purpose and deters help-seeking behavior.thereby exacerbating vulnerability.

Current Legal FrameworkinKenva

Section226ofthePenal Codereads:

"Any person who attempts tokill himself is guilty of amisdemeanour:"

This provision treats individuals experiencing severe mental distress as criminals rather than patients requiring medicalintervention.It criminalizes individuals at their most vulnerable moment,often when they are experiencing mental health disorders such as depression or psychosis.

However. there is in place the Mental Health Act,Cap.248,which aims to:

• Provide care,treatment,and rehabilitation of persons suffering from mental disorders;
• Promote community-based interventions;
• Ensure theprotection andmanagement of suchpersons'estates andwell-being

The criminalization of attempted suicidecreates a fundamental conflictwith the objectivesof the Mental HealthAct.

There is therefore a clear inconsistency between the punitive approach under the Penal Code and the rehabilitative and rights-based approach envisioned in the Mental Health Act.

Theproposed amendment to deleteSection226of thePenal Code is a necessary and progressive reform that alignsKenya'slegal frameworkwithconstitutionalvalues,scientific understanding of mental health,andglobalhumanrightsstandards.Decriminalizingattemptedsuicidewill promote compassion over punishment,reduce stigma,and empower individuals to seek timely and appropriate care.

This legislative change,however,must be accompanied by deliberate implementation measures, including the strengthening of mental health systems,alignmentwith theMental HealthAct,and investment inpublic education,crisis intervention,and community-based support.

Outreach ForActionKenya welcomes theopportunity to contribute to thiscritical reform and urgesParliament topass theBill in its current form,thereby affirmingKenya'scommitment to a rights-based,health-oriented approach to suicide prevention andmental well-being.

Submitted on Behalf of Outreach For Action Kenva (OAK)**by:

IsabellaMandi-Director(proposed),OAK IDNo.13414367 ikmmanduku@gmail.com 0722725409

CliffNyandusi-Director(proposed),OAK IDNo.39045980 cliffnyandusi3@gmail.com 0725405914

Date:24th June,2025

**OutreachFor Action Kenya(OAK) is currently undergoingregistralion as a Company Linited by GucaranteeundertheCompaniesAct,2o15.Theorganizationiscommittedtociviceducation.publicpolicy engagement,andlegalreformadvocacyinKenya.

OURREF:A&K/GEN/2025

YOURREF:T.B.A

DATE:24June2025

TheClerk,NationalAssembiy, P.OBox41842-00100, Main ParliamentBuildings, Nairobi,Kenya

Dear Sirs,

Re:Submissionof Commentson thePenal Code(Amendment)Bill No.53 Of2024

We acknowledgereceiptofthe call forpublicparticipationregarding the Penal Code(Amendment) Bill No.53Of2024.

Pleasefindattached ourmemorandumwithcommentson theproposed amendment.

Weappreciatetheopportunitytocontribute to thislegislativeprocessandareavailableforanyfurther discussions or clarifications as needed.

Yours faithfully,

NATIONAL ASSEMBLY RECEIVED

Anjarwalla&KhannaLLP

24JUN2025

Anjarwalla &Khanna LLP Encl.

CLERK'S OFFICE P.O.B0X41842.NAIR0BI

"Advancecopy viaemail:cna@parlioment.qo.ke"

2

ANJARWALLA&KHANNAIALNKENYACOMMENTSTOTHEDEPARTMENTCOMMITTEEONJUSTICEANDLEGALAFFAIRSON THEPENALCODE(AMENDMENT)BILLNO.53OF2024

| Clause in the Bill | Current provision in the Bill | Proposedrecommendation | Justification andrationale | |----------------------|---------------------------------------------------------------------|-----------------------------------------------------------------------------------------------------------------------------------------------|----------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------| | Section226 | ThePenalCodeCap63is amendedbyrepealingSectionshouldberepealed. 226. | The current Section 226 Reference toSection266in thememorandumofobjects andreasons hasbeen made erroneouslyand shouldbe amended toSection226. | WeproposesupportforthedeletionofSection26of thePenal Code onthefollowingadditionalreasonstothosefurtheredin the memorandumaccompanyingtheBill. Section226ofthePenalCodeCap63wasdeclaredunconstitutional bytheHighCourtofKenyainKenyaNational Commission on Human Rights&2othersvAttorneyGeneral;DirectorofPublicProsecutions &3others(InterestedParties);LawSocietyofKenya(AmicusCuriae) (ConstitutionalPetition E045 of 2022)[2025]KEHC 6(KLR) sinceitviolatesArticles27,28and43oftheConstitutionofKenya, 2010(theConstitution). ByvirtueofSection2oftheMental HealthAct,a“personwithmental illness”is defined asaperson diagnosedbyaqualified mental health practitionertobe sufferingfrom mental illnessandincludes-(a)a person diagnosedwith alcohol or substance use disorder;and(b)a personwith suicidalideation or behaviour.Therefore,thelaw recognisesthatpersonswithsuicidalbehaviourarepersonssuffering frommentalillnessthecriminalisationofwhichisunconstitutional. Personswithsuicidal tendenciesarevictimsofmentalillnessare incapable ofpossessingtherequisitemensrea tocommitoffences. Section226ofthePenalCodeoffendsArticle27oftheConstitution bycriminalisingamentalhealthissue therebyendorsing discrimination onthebasisofhealth. |

| It alsoindignifies anddisgracesvictimsof suicideideation inthe eyes of thecommunityfor actionsthat arebeyond their control whichisa violation ofArticle 28of the Constitution.Additionally.it exposesthe survivors of suicide and persons with suicidal tcndencies to criminal sanction instcad ofhealthcare therebyeroding therighttohave the highest artainable standardof health cnvisagedinArticle 43(1) ofthe Constitution. | |------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------|

LAW SOCIETYOFKENYA

Lavington,Opposite Valley Arcade Gitanga Road

P.O.Box72219-00200

NAIROBI Tel.+254111045300

MEMORUNDUM

TO

THE NATIONAL ASSEMBLY

ON

00O

#AbenayoNasikeHD

PlacebefoeJhAC,

23107125

THE PENALCODE(AMENDMENT)BILL NO.53 OF 2024

JULY,2025

Faith Mony Odhiambo,President Law Society of Kenya Lavington,opp Valley Arcade, Gitanga Road P.O Box72219-00200 Nairobi |Kenya Tel:+254111045300

Email:president@lsk.or.ke

Website:www.lsk.or.ke

NATIONAL ASSEMBLY RECEIVED

21JUL 2025

CLERK'S OFFICE

P.O.B0X41842,NAIROBI

INTRODUCTION.

The Law Society of Kenya is a professional statutory body established under the Law Society ofKenya Act,No.21 of 2014with a mandatory membership of all Advocates in Kenya.

The organs of the Society are the General Membership. the Council, the Branches and the Secretariat. The Council is the governing body of the Law Society of Kenya. lt comprises a President,a Vice-President and eleven other members.all of whom must be members of the Law Society of Kenya. Council members are elected every two years by the members of the Society by means of a secret ballot conducted in accordance with theLawSociety ofKenya Act.

Currently,the Council is comprised of The President.The Vice-president and 1l Council membersnamely:

• OPresident.FaithMonyOdhiambo
• Vice President.Mwaura Kabata
• C General Membership Representatives,Tom K'opere,Teresia Wavinya.Hosea Manwa
• Nairobi Representatives,Gloria Kimani,lrene Otto,Stephen Mbugua
• Up-country Representatives,Vincent Githaiga.Lindah Kiome.Hezekiah Aseso, ZulfaRoble
• O CoastRepresentative.ElizabethWanjeri
• oSecretary/CEO,FlorenceW.Muturi

One of thestatutory objects of the LawSociety of Kenya as provided in section 4(a)of the Act is to assist the Government and the courts in all matters affecting legislation in Kenya.Pursuant to this mandate. the LSK submits this memorandum in support of the Penal Code (Amendment) Bill,National Assembly Bill No.53 of 2024, which seeks to delete Section 226 of the Penal Code (Cap. 63) and thereby decriminalise attempted suicide inKenya.

GENERALCOMMENTS.

Theprincipal object of thePenal Code(Amendment) Bill,National Assembly Bill No. 53of2024istoamendthePenalCodetodeletesection226whichcurrently criminalisesattemptedsuicide asa misdemeanourpunishableby imprisonment,a fine. orboth.The proposed amendmentwill decriminalise attempted suicide,which isa positivemove towardsrecognisingsuch acts asmental health emergency thatrequire appropriate mental interventions and should not attract criminal liability.

By passing this amendment,Kenya will:

• 1.Align itself with other countries that have taken steps toreduce the global suicide rate by one third by 2030 in line with the United Nations (UN) Sustainable Development Goals (SDGs) and the World Health Organization (WHO) global Mental Health Action Plan.A push supported by WHO's finding that the criminalisation of suicide and attempted suicide in fact hinders the attainment of SDGs.
• 2.Promote mental health-based approach,because Individuals who attempt suicide are often in serious psychological distress.suffering from depression, trauma,or hopelessness and criminal sanctions penalise suffering rather than addressingitsrootcauses.
• 3.Reduce stigma and barriers to help-seeking as suicide prevention requires psychosocial and medical intervention,not prosecution. Criminalisation deters decriminalisation on the otherhand encourages early intervention,voluntary treatment,and community-based care.
• the Rightsof Persons with Disabilities(CRPD)and the International Covenant on Civil and Political Rights (ICCPR),which require humane treatment of personswith mental illness.TheAfrican Commissionon Human andPeoples Rights also advocates non-punitiveresponses tomental health crises
• 5.Alignwithconstitutionalconsiderationsincluding:Article28 Right todignity, Article 43(1)(a) Right to the highest attainable standard of health,including

mental health.Article 27 Freedom from discrimination and Article 24on the standardsof limitationofrights

CONCLUSION.

Decriminalising attempted suicide marks a critical step in recognising the dignity. vulnerability. and humanity of persons in psychological distress. It is a necessary and Overdue reform that aligns Kenya's laws with evolving global standards, and the values oftheConstitutionofKenya.

The Law Society of Kenya fully supports the proposed amendment and urges the National Assemblytofast-trackitsconsideration andpassage.

Submitted foryour consideration.

Yours faithfully.

Faith Odhiambo PresidentLawSocietyofKenya.

C