Index joins call for robust protections against transnational repression in the higher education sector

Transnational repression (TNR) allows states and their proxies to reach across national borders to intimidate, threaten and force silence, targeting everyone who speaks out in the public interest, wherever they are. Index has documented TNR targets across society, including journalists, artists, writers, academics, opposition leaders and members of marginalised groups such as Uyghurs and Tibetans.

Yesterday, Index joined other human rights organisations, academics, legal experts and TNR targets calling on the Office for Students and UK Government to establish robust protections for all academics, students and support staff against TNR in the higher education sector. This followed threats made against Roshaan Khattak, a Pakistani human rights defender and film maker, while he was researching enforced disappearances in Balochistan, a province of Pakistan, at the University of Cambridge.

The letter highlights the challenges he has faced, the gaps in the institution’s response to the threats and what the broader sector must to do ensure everyone in the academic space is protected.

Read the letter below

Sent Electronically

Susan Lapworth
Chief Executive
Office for Students (OfS)
Nicholson House
Castle Park
Bristol BS1 3LH

Cc: The Rt. Hon. Bridget Phillipson MP, Secretary of State for Education
Professor Arif Ahmed, OfS Director for Freedom of Speech and Academic Freedom

6 October 2025

As demonstrated by the threats to Cambridge post-graduate student Roshaan Khattak, the Office for Students and the broader higher education sector must establish robust protections against Transnational Repression.

Dear Ms Lapworth,

We, the undersigned organisations and individuals, write to call on the Office for Students, as well as the broader Higher Education sector, to establish tailored and robust protections for academics, students and support staff facing threats of transnational repression (TNR). This follows significant concerns regarding the response of the University of Cambridge to threats made against Mr Roshaan Khattak, a Pakistani filmmaker and human rights defender enrolled as a postgraduate researcher at the institution. This case is illustrative of the threats facing academic inquiry and the need for significant action. As a result, we call on the Office for Students (OfS) to establish policies that relate to universities’ obligations to establish protocols to respond to acts of TNR against their staff, students and the wider academic community.

The UK Government has described TNR as “crimes directed by foreign states against individuals”. While a global phenomenon, examples of TNR in the UK have been documented targeting journalists, human rights defenders, academics and members of diaspora or exile communities based inside the UK by repressive regimes such as Iran, Russia, Pakistan, and China (as well as Hong Kong), as well as democracies with weak institutional protections. The central goal of TNR is to exert state control and censorship beyond state borders to intimidate critics into silence, stifle protected speech and undermine the safety and security of those based in other jurisdictions. Earlier this year, the Joint Committee on Human Rights published a report on TNR following a public inquiry on the issue, which stated “[d]espite the seriousness of the threat, the UK currently lacks a clear strategy to address TNR”. We believe that in the context of higher education, TNR represents a significant threat to students’ ability to “access, succeed in, and progress from higher education” and benefit from “a high quality academic experience”.

The threats facing Roshaan Khattak are illustrative of this risk. On 21 December 2024 Mr Khattak received a message warning that neither Cambridge nor the UK is “safe” for him or his family if he continues his research into enforced disappearances in Balochistan (a province in Pakistan). While the origin of the threat is unknown, there are allegations that the Pakistan military and Inter-Services Intelligence (ISI) agency have targeted those in exile, including Shahzad Akbar and journalists Syed Fawad Ali Shah and Ahmed Waqass Goraya. This also comes at a time when work on human rights violations in Balochistan is increasingly dangerous, as evidenced by the suspicious deaths of Sajid Hussain and Karima Baloch. Despite police awareness of the threat, Mr Khattak reports that his progress towards his PhD has been stopped for now, with Wolfson College having also repeatedly cancelled meetings, revoked his accommodation and changed the locks to his room without notice, limiting access to and compromising his sensitive research materials and data. They have also encouraged him to fundraise from the Baloch community in the UK to secure private accommodation, therefore disregarding the university’s responsibilities to him. We believe that the university should be exploring ways to ensure Mr Khattak’s safety, in collaboration with the relevant authorities, instead of trying to put him out of sight, out of mind. MPs including John McDonnell and Daniel Zeichner, as well as the UN Special Rapporteur on Human Rights Defenders, Mary Lawlor, and other leading human rights defenders have raised awareness of this case or shared their concerns with the University. Additionally, McDonnell has submitted an Early Day Motion in UK Parliament, backed by cross-party support, drawing attention to the threats faced by Roshaan and the wider impact of TNR on UK academia.

The Higher Education and Research Act 2017 outlines OfS’s “duty to protect academic freedom”, while also establishing the legal underpinning for OfS’s regulatory framework which states that both “academic freedom” and “freedom of speech” are public interest governance principles, which should be upheld by all higher education institutions. Further to this, the Higher Education (Freedom of Speech) Act 2023, amends the 2017 Act to require institutions to establish codes of practice as it relates to their procedures to protect free speech and for the OfS to establish a free speech complaints scheme. These, as well as the “Regulatory advice 24: Guidance related to freedom of speech”, which came into force in August, establish an important baseline. However, in response to the impact of TNR on free speech and academic freedom, the OfS must build on this to establish specific and tailored responses for academics, students, staff and all university personnel as it relates to TNR.

Due to our concerns related to the absence of sector-wide protections against TNR, as evidenced by the University of Cambridge’s handling of the threats against Mr Khattak and the implications they have on his ability to continue his academic work and express himself freely, we request the OfS to:

1. Review the adequacy of existing sector-wide guidance to ensure it can protect academics, students and other relevant stakeholders from transnational repression;
2. Establish tailored and specific policies as it relates to transnational repression to offer support for the targets and practical guidance for the broader higher education sector. This should include methods by which all relevant authorities, such as the police can be engaged with constructively; and,
3. Commit to report publicly on findings and any regulatory action taken as it relates to TNR, to assure current and prospective students that UK higher-education providers will not yield to acts or threats of TNR.

The undersigned organisations believe that Mr Khattak’s situation is a wake-up call for the higher education sector as it relates to defending both student welfare and the principle of academic freedom in the face of transnational repression. A robust response from OfS will not only safeguard one vulnerable researcher but also support other institutions and at-risk academics who may be facing similar concerns or threats.

We stand ready to provide further documentation or expert testimony and would welcome the opportunity to discuss this matter with your team.

Yours sincerely,

Index on Censorship
Peter Tatchell Foundation
Amnesty International UK
National Union of Journalists
ARTICLE 19
Cambridge University Amnesty Society
Martin Plaut, Senior Research Fellow, Institute of Commonwealth Studies
Dr. Andrew Chubb, Senior Lecturer in Chinese Politics and International Relations, Lancaster University
Sayed Ahmed Alwadaei, Advocacy Director, Bahrain Institute for Rights and Democracy (BIRD)
Salman Ahmad, UN Goodwill Ambassador, HRD, Author, Professor at City University of New York-Queens College, Target of TNR
Marymagdalene Asefaw, DESTA MEDIA, Target of TNR
Maria Kari, human rights attorney, Founder, Project TAHA
Professor Michael Semple, Senator George J. Mitchell Institute for Global Peace, Security and Justice; Former Deputy to the European Union Special Representative in Afghanistan; Former United Nations Political Official
Hussain Haqqani, former ambassador; currently Senior Fellow and Director for South and Central Asia, Hudson Institute, Washington D.C.
Dr. James Summers, Senior Lecturer in international law, Lancaster University
Dr. Thomas Jeff Miley, Lecturer of Political Sociology, Fellow of Darwin College, University of Cambridge
Aqil Shah, Adjunct Associate Professor, School of Foreign Service, Georgetown University; non-resident scholar at Carnegie Endowment for International Peace
Ahad Ghanbary, TNR Target
Dr. Lucia Ardovini, Lecturer in International Relations, Lancaster University
Dr. John McDaniel, Lecturer in Criminal Justice and Crime, Lancaster University
Yana Gorokhovskaia, Ph.D., Research Director for Strategy and Design, Freedom House
Afrasiab Khattak, Former Chairperson of Human Rights Commission of Pakistan (HRCP), former Senator
Professor Pervez Hoodbhoy, nuclear physicist, nuclear disarmament advocate, public intellectual
Taha Siddiqui, Pakistani journalist in exile (NYTimes, Guardian, France24), Founder The Dissident Club
Shahzad Akbar, Barrister, human rights lawyer, TNR acid attack victim, founder Dissidents United