FINAL REPORT OF THE ENQUETE COMMISSION ON "SO-CALLED SECTS AND PSYCHOGROUPS"

1 Mandate and Implementation of the Work of the Enquete Commission on "So-called Sects and Psychogroups"

1.1 Description of the problem as well as the Commission's establishment and mandate

With the votes of the CDU/CSU, F.D.P. and SPD, the German Bundestag adopted a recommendation for a decision on 9 May 1996 - submitted by the Committee for Scrutiny of Elections, Immunity, and Rules of Procedure in response to a motion tabled by the SPD's parliamentary group (Bundestag Doc. 13/3867) - establishing the Enquete Commission on "So-called Sects and Psychogroups" (Bundestag Doc. 13/4477).

With this decision, the German Bundestag followed a recommendation made by the Petitions Committee on 25 October 1995 to establish an Enquete commission in order to clarify a host of legal questions brought to the attention of the Petitions Committee by concerned citizens.

These questions and concerns were not new; along with personally affected individuals, information and counselling centres had been increasingly preoccupied with these issues since the 1960s. In every-day usage, the term "sect" has long since stopped referring exclusively to religious movements; instead, it also covers ideological, philosophical, psychological, educational, and political communities. A group's history of ideas is no longer the only factor that determines the use of the term "sect" but also - and primarily - the presence of a certain potential for conflict. The groupings which are referred to under the generic term "sects" are accused of, among other things, isolating and psychologically manipulating individuals by means of totalitarian internal structures and the use of problematic methods of taking influence, as well as fraud, exploitation and the infliction of severe mental damage on members and their families; however, they are also accused of devising antidemocratic societal systems.

Because of the widespread use of the term "sect" in every-day language, the German Bundestag decided to give the Enquete Commission the working title "So-called Sects and Psychogroups". This title is evidence of the fact that the German Bundestag rejects any sweeping statements flatly condemning all communities believed to belong to the spectrum of groups that might spark conflicts.

In its work, the Enquete Commission did not start off by focusing on specific groups; instead, the Commission began by examining and analysing the potential conflicts ascribed to the phenomenon of new religious and ideological communities and psychogroups. This was the mandate assigned to the Enquete Commission by the German Bundestag in its decision to establish the Commission. Hence, the Enquete Commission has not endeavoured to appraise religions or ideologies; nor has it drawn up a list of all the groups which are active in the Federal Republic of Germany because such a list would involve a considerable risk that the groups mentioned therein might be stigmatized.

The Commission's remit was to analyse conflict and problem areas in the field of new religious and ideological communities and psychogroups and to find solutions without scrutinizing religious beliefs. On the one hand, this brief was fully in keeping with the freedom of religion and the freedom of religious belief guaranteed by the German Constitution, as well as the associated religious and ideological neutrality of government; with its remit, the Enquete Commission also fulfilled a duty incumbent upon the State, which is to protect individuals against any encroachment upon their rights, and to protect society as a whole.

Under the German Bundestag's decision to establish the Commission, the latter had the mandate to deal with four priority areas in its work:

1. To analyse the objectives, activities and practices of so-called sects and psychogroups that are active in the Federal Republic of Germany

This analysis is expected to

identify dangers emanating from these organisations for the individual, the State, and society;

appraise open and concealed societal objectives pursued by these organisations;

identify national and international interconnections of these organisations, and

identify the limits to recourse to the constitutionally guaranteed freedom of religion for more recently established religious and ideological movements, so-called sects and psychogroups

2. To find out why individuals join so-called sects or psychogroups and why such organisations are growing in membership

To this end, the Enquete Commission is requested to

study typical case histories, i.e. how individuals become members and what happens after they join such organisations;

identify the social and political conditions which lead to an increased willingness to join so-called sects and psychogroups;

identify enlistment and recruitment strategies pursued by these organisations, and

develop proposals designed to prevent citizens, as well as companies, associations, pressure groups and other institutions from inadvertently being drawn into such organisations or being abused by such organisations.

3. To identify problems encountered by individuals during membership and when trying to leave membership in sects can lead to problems not only for the members themselves but also for their families and friends, and it can create problems in companies, associations, pressure groups, and other institutions. Socialisation problems and legal disputes due to family conflicts are of particular importance in this context. Even if the extent to which individuals are affected varies, it is often not possible to cope with the problems or their solutions without outside support. For this reason, the Commission was requested to study not only the problems associated with sect membership and the consequences for all the parties affected but also the question as to what offers for help are or should be available. When examining the help that can and must be given to individuals who want to leave an organisation, the Commission should take into consideration reports by former members about their experience regarding the pressure exerted by some organisations, as well as the psychological state of members, and their prospects and opportunities "after" leaving the organisation."

4. To draw up recommendations for action bearing in mind the debate carried on in society to date the Commission is expected to submit fundamental recommendations for how to deal with the phenomenon of the so-called sects and psychogroups in future, involving the institutions in society affected by this phenomenon; it should be possible to implement these recommendations within a short period of time. In its work, the Commission should also answer the question as to whether the way this phenomenon has been dealt with in society in the past, and whether the fact that all these organisations are generally referred to as sects or youth sects, is in keeping with the actual development and the need for an appropriate debate in society."

This Final Report, which follows up on the Enquete Commission's Interim Report (Bundestag Doc. 13/8170), is the result of a busy and packed work schedule. Because of the short time available, the Commission was not able to investigate all the ramifications of the subject. In its analysis, the Enquete Commission therefore deliberately focused its attention on priority issues in keeping with the mandate assigned by the German Bundestag in its decision to set up the Enquete Commission:

A key challenge for the Enquete Commission was to appraise membership in new religious and ideological communities and psychogroups from the perspective of the individual in order to find out what conflicts actually emanate from new religious and ideological communities and psychogroups. To this end, the Commission looked intensively into the question of an individual's background and the connection between the individual's life history and his or her joining, leaving, or staying in new religious and ideological communities and psychogroups. The Commission examined the question as to whether dependencies of the individual are created within the group, and if so, in what ways, and what effects membership has.

Another priority of the Enquete Commission's work was to identify the causes in society which lead to the development and spread of new religious and ideological communities and psychogroups because the phenomenon can only be assessed adequately if it is seen from the perspective of society as a whole. On the one hand, the causes of the growth of new religious and ideological communities and psychogroups as a characteristic of the modern world are not limited to Germany alone; and on the other hand, many of the groups operate internationally. For this reason, the Enquete Commission chose the international dimension of the phenomenon as another priority issue in its work. For this purpose, the Commission not only invited scientists from other countries to participate in an exchange of ideas, but it also had numerous talks to exchange experience with foreign politicians and explained the German position vis-à-vis the Scientology Organisation during a trip to the United States of America.

Furthermore, the Enquete Commission examined the activities and assessed the importance of new religious and ideological communities and psychogroups in business enterprises. Particular attention was paid by the Commission to the problem area of "children in new religious and ideological communities and psychogroups" because the State has a particular duty to protect these weakest members of society; and there is by all means a dichotomy between this duty and the constitutionally guaranteed right of parents to educate their children. Arriving at a balanced assessment of the phenomenon in this context was a particularly difficult challenge for the Enquete Commission.

In its recommendations for action developed on the basis of its analysis of the phenomenon of new religious and ideological communities and psychogroups, the Enquete Commission takes into account current discussions on legislation in Germany, draws attention to the need for closing loopholes in current legislation, presents proposals for improving the efficiency of counselling and information services, and makes suggestions for improvements in the sector of research, education and continuing education, which has so far been grossly neglected in the Federal Republic of Germany.

However, the recommendations for action developed and deemed necessary by the Enquete Commission do not release the various societal groups from their own obligation to deal with the phenomenon of the new religious and ideological communities and psychogroups in a responsible manner. The Enquete Commission itself considered that it was one of its important tasks to try and have a dialogue with groups in an effort to ease the tensions in society. Many communities gladly accepted the proffered dialogue and used this opportunity to submit statements. The Enquete Commission is hoping that the dialogue between the groups, government and society will continue after the completion of its work. However, this will require a certain measure of "even-handedness", not only on the part of the media, academia, and each individual, but also by the groups and communities themselves. A dialogue can only be successful if both sides make an effort.

1.2 The Enquete Commission's Methodological Approach

Composition of the Enquete Commission

The Enquete Commission was composed of twelve members of the parliamentary groups represented in the German Bundestag, as well as twelve experts. The PDS group was represented by one non-voting member in an advisory capacity; in addition, the PDS appointed one non-voting expert. A secretariat provided organisational and scientific support to the Commission in its work.

Deliberations

In the period between its constituent meeting on 9 May 1996 and the adoption of its final report at the meeting on 28 May 1998, the Commission held a total of 49 meetings.

For reasons of confidentiality, most of the hearings of external experts were not open to the public:

Non-public hearings and talks with experts

Talk with experts from Germany's Offices for the Protection of the Constitution, 14 November 1996
Hearing of counselling and information centres as well as initiatives of parents and affected individuals, 2 December 1996
Hearings of various groups, 13 January 1997 and 17 February 1997
First part of a series of three hearings on the "Situation of Children and Adolescents in so-called Sects and Psychogroups", 20 February 1997
Hearing on "So-called Sects and Psychogroups and Business Enterprises", 12 May 1997
Hearing on "So-called Sects and Psychogroups: A Challenge for Society?", 2 June 1997
Hearing on "International Interconnections", 5 June 1997
Hearings on "Drop-outs from so-called Sects and Psychogroups", 25 September 1997, 2 October 1997, 9 October 1997, 5 February 1998
Talk with experts on the topic of "Pyramid Selling", 13 November 1997
Talk on the topic of "International Aspects in the Field of so-called Sects and Psychogroups" with an expert from the European Parliament, 11 December 1997
Talk with experts on the topic of "Ritual Abuse", 16 January 1998
Talk with an expert from the German Federal Ministry of Labour and Social Affairs on labour law and social security issues, 12 February 1998
Talk with medical experts on the topic of "Disease Risks due to the Improper Use of Hypnosis, Trance, and Conditioning in Lay Therapy and Group Dynamics Events", 14 May 1998

The Enquete Commission invited the following groups to attend non-public hearings: Alter Mystischer Orden Rosae Crucis (Rosenkreuzer), Bruno Gröning-Freundeskreis, Gemeinde auf dem Weg, Gesellschaft für Transzendentale Meditation (TM), International Society for Krishna Consciousness (ISKCON), Church of Jesus Christ of Latter Day Saints (Mormons), Landmark Education, Neue Akropolis, Osho, Scientology, Soka Gakkai, Universelles Leben e. V. (UL), Verein zur Förderung der psychologischen Menschenkenntnis (VPM), Vereinigungskirche (Unification Church) Jehovah's Witnesses. Representatives of the Europäische Arbeiterpartei (European Labour Party; today: Bürgerrechtsbewegung Solidarität - Solidarity Civil Rights Movement) were invited but did not accept this invitation. While the representatives of the Scientology Organisation and of VPM appeared at the hearing, they refused to give any information.

The Commission heard drop-outs from the following groups or course participants: Ananda Marga, Europäische Arbeiterpartei (European Labour Party; today: Bürgerrechtsbewegung Solidarität - Solidarity Civil Rights Movement, Gemeinde auf dem Weg, Gesellschaft für Transzendentale Meditation, Kaizen, Landmark Education, Sant Thakar Singh, Scientology, Soka Gakkai, Universelles Leben e.V., Verein zur Förderung der Psychologischen Menschenkenntnis, Vereinigungskirche (Unification Church), Jehovah's Witnesses.

Public hearings

Hearing on the topic of the "Constitutional Background in Dealing with New Religious and Ideological Movements (German Constitution, Art. 4)", 12 December 1996
Second part of the series of hearings on the "Situation of Children and Adolescents in so-called Sects and Psychogroups"; hearing of educational and psychological experts, 13 March 1997
Third part of the series of hearings on the "Situation of Children and Adolescents in so-called Sects and Psychogroups"; hearing of legal experts, 20 March 1997
Conference on the topic of "Psychotechniques", 14 April 1997
International forum on the topic of: "So-called Sects and Psychogroups and Their International Interconnections", under the Patronage of the Speaker of the German Bundestag, Professor Dr Rita Süssmuth, MP, 22 September 1997

Trips

Trip of some Commission members to meet representatives of Universelles Leben (Universal Life) and Jehovah's Witnesses, 19 and 20 August 1997
Trip of a Commission delegation to the United States of America, 23 to 27 February 1998

Research projects/Studies

In order to determine the spread of new religious and ideological communities and psychogroups in the German population, the Enquete Commission awarded a contract to INFRATEST Burke GmbH, Berlin, to conduct a survey based on a representative sample. For the results, see the Commission's Interim Report (Bundestag Doc. 13/8170, p. 33 ff.).
In order to analyse the background and connections with the life history of individuals, i.e. careers in new religious and ideological movements, the Enquete Commission awarded a contract for a research project entitled "Drop-outs, Converts, and Believers: Contrasting Biographical Analyses of Why Individuals Join, Have a Career and Stay in, or Leave, Religious/Ideological Contexts or Groups".

The implementation of this project was entrusted to:

Professor Dr Heinz Streib, University of Bielefeld,

Professor Dr Werner Fuchs-Heinritz, Open Polytechnic University of Hagen,

Dr Albrecht Schöll, Comenius-Institut Münster,

Wilfried Veeser, theologian, pastor of the Protestant Church in Württemberg.

(For the results, see Chapter 3.6. as well as the Annex).

In order to identify the motives and the patterns of perception of psycho-market clients, and to shed some light on the providers and consumers as regards the psycho-market, psycho-techniques and the esoteric scene, the Enquete Commission joined an ongoing project headed by Professor Dr Straube and Professor Dr Mischo. In this context, the Commission awarded a contract to Gerhard Hellemeister (psychologist, University of Jena) who, in co-operation with Wolfgang Fach (psychologist, Institut für Grenzgebiete der Psychologie, Freiburg), carried out a research project on the topic of "Providers and Consumers in the Psycho-market: An Empirical Analysis" (see Chapter 3.5 for the findings).
In order to obtain reliable findings with regard to the question as to whether there is a specific form of religious dependence, and if so, what processes lead to such dependence, and how it can be defined, the Enquete Commission awarded a contract for a research project on the topic of "What Are the Characteristics that Can Be Used to Identify Religious Dependence?". This contract was awarded to Professor Dr Burkhard Gladigow, Kulturwissenschaftliches Institut im Wissenschaftszentrum Nordrhein-Westfalen (see Chapter 5.1.4 for the findings).
In order to study socially desirable and undesirable effects associated with new religious movements, the Enquete Commission awarded a contract for a study on the topic of "Social and Psychological Effects of Membership in New Religious Movements, with Special Consideration Given to the Social Integration and Mental Health". Dr Sebastian Murken, psychologist, University of Trier, was entrusted with the execution of this project (see Chapter 3.7 for the findings).
In order to make cause-effect relations of conflictual events fully comprehensible in the social environment of individuals primarily affected by new religious and ideological communities and psychogroups, the Enquete Commission awarded a contract for an expert report on the topic of "Need for Counseling, and Triggering Conflicts in the Case Histories in a So-called Sect Counseling Centre, Based on Case Categories and Process Patterns". The execution of the project was entrusted to the Beratungsdienst für Sektenund Weltanschauungsfragen beim Bischöflichen Generalvikariat Aachen (see Chapter 4.2 for the findings).
In order to identify the skills which the staff of counselling centres for new religious and ideological communities and psychogroups need in order to meet counselling needs, the Enquete Commission awarded a contract for an expert report on the topic of "Skills Required for Counselling Staff Working in the Conflict Area of So-called Sects and Psychogroups: Criteria and Strategies". This study was entrusted to Beate Roderigo, psychologist, Informations-und Dokumentationszentrum Sekten/Psychokulte of the Arbeitsgemeinschaft Kinder- und Jugendschutz, Landesstelle Nordrhein-Westfalen e. V. (see Chapter 4.2 for the findings).

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