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Not just another ‘crisis’: Could the blocking of the Afghanistan investigation spell the end of the ICC? (Part I)

Published on April 19, 2019        Author: 

This is a two-part post on the PTC’s Afghanistan non-investigation decision. Part I discusses the PTC’s analysis of the interests of justice requirement. Part II will focus on the decision’s broader implications.  

Judicial meltdown

The Decision of Pre-Trial Chamber II of 12 April 2019 to turn down the Prosecutor’s 20 November 2017 Request for authorization to commence an investigation in Afghanistan came as a shock to many observers. It is the anti-climax of more than a decade-long preliminary examination by the Office of the Prosecutor and one-and-a-half years of judicial deliberations. Although it was always within the range of possibilities that the PTC would decline, it was the least expected outcome. In her Request, the Prosecutor had shown—and the Chamber agreed—that there existed reasonable grounds to believe that crimes within the ICC’s jurisdiction had been committed in the situation since 1 May 2003 and the potential cases would have been admissible before the Court. The judges differed from the Prosecutor in one decisive respect on which the rejection essentially—and problematically—rests: the opening of the investigation would not have satisfied Article 53.1.c of the Statute, i.e. there were substantial reasons to believe that the investigation would not serve the “interests of justice”.

It is far from clear whether the Prosecutor will be able or indeed willing to appeal the PTC Decision (my preliminary answer is no on both points). Moreover, Article 15.4 authorizes the Prosecutor to file a new request ‘based on new facts or evidence regarding the same situation’. While this could be the way to resuscitate the procedure, it is uncertain whether the OTP would consider using it – or whether ‘new’ facts or evidence could show a change in relevant circumstances (see para. 94) and reverse the PTC’s ‘interests of justice’ assessment. The other avenue discussed on Twitter would be for one or more of the States Parties to refer the situation in Afghanistan to the Prosecutor, thus enabling her to circumvent the authorization obstacle. The problem would be to find such a State Party, that would be prepared to take on the wrath of the US. Palestine and Venezuela come to mind but the discussion whether hinging this investigation on those states’ referral is optimal or desirable is rather left for another day. As matters stand, it is more likely than not that the PTC’s decision has effectively sealed the fate of situation in Afghanistan before the ICC.

‘Crisis’ has been the buzzword courtesy the ICC for some time now. But this is not your average ‘crisis’. Many of the flaws in the PTC’s decision have been helpfully dissected by Heller, Jacobs, Labuda, Rona, de Vos and other commentators. However, the ruling is not just unnerving on multiple counts of form and substance. A thinly-guised surrender to power politics, it is nothing short of a judicial meltdown. Its significance and implications for the institution and international criminal justice more generally are profound, fitting neatly in the patterns decried in the ‘radical critiques’ of international criminal law.

This (first) part of the post shows how the PTC’s treatment of the ‘interests of justice’ requirement went astray, bringing legally irrelevant desiderata within the judicial determination. Part II of the post offers a few unconsoling thoughts on the impact of the Afghanistan decision on the ICC’s credibility and what it may bode for the future of international criminal justice.   Read the rest of this entry…

 

The Murder of Jamal Khashoggi: Immunities, Inviolability and the Human Right to Life – Part V: Conclusion

Published on April 18, 2019        Author: 

The murder of Jamal Khashoggi is in many respects a truly extraordinary case. But it is by no means unique – authoritarian states assassinate journalists and political dissidents with some frequency. The use of consular premises as the scene of the killing is, of course, one special feature of this affair. And while diplomatic and consular privileges and immunities are abused all the time, this is not normally done in so spectacular a fashion.

What makes Khashoggi’s killing so fascinating from the standpoint of an international legal analysis is the interplay between the human right to life and the rules of diplomatic and consular law. However, as I have explained, most of the possible norm conflicts between immunities and the right to life could have been avoided in Khashoggi’s case. This is primarily because Khashoggi was killed on the premises of a consulate and not those of a diplomatic mission, and because consular privileges and immunities are significantly weaker than diplomatic ones.

It is therefore unclear why Turkey acted as if international law laid such obstacles in front of it, when in doing so it actually exposed itself to legal liability under IHRL for failing to effectively investigate Khashoggi’s death. There are several possible explanations. First, Turkey could have genuinely misunderstood the legal position, failing to appreciate the attenuated nature of consular immunities. The confusion of consular privileges and immunities with the more expansive diplomatic versions has certainly been pervasive in the coverage of the Khashoggi affair. In fact, in a speech in parliament President Erdogan lamented the fact that the ‘Vienna Convention’ – he did not specify which – inhibited the investigation through the ‘diplomatic immunity’ it provided for, commenting that it may need to be reviewed or revised.

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The ICC Pre-Trial Chamber Decision on the Situation in Afghanistan: A Few Thoughts on the Interests of Justice

Published on April 18, 2019        Author:  and

There has been a storm of criticism of the decision of Pre-Trial Chamber (PTC) II of the International Criminal Court (ICC, the Court) to reject the Prosecutor’s request for authorisation of an investigation into the situation of Afghanistan. As discussed previously on this blog (see here), the basis of the PTC’s decision was that the initiation of said investigation was not in the ‘interests of justice’, in accordance with Articles 15(4) and 53(1)(c) of the Rome Statute. The criticisms have targeted almost every aspect of this decision. In particular, questions have been raised as to whether the PTC has the power to review the Prosecutor’s decision to initiate an investigation which she considered was in the interests of justice, as opposed to a decision that it an investigation is not (see here, and here). Some have also challenged the merits of this decision on various grounds, in particular, that it would introduce non-legal considerations into an assessment that has been and ought to be narrowly circumscribed, or that the PTC could not simply conduct a de novo review of the Prosecutor’s inherently discretionary decision (see here and here). Others have presented a more systemic critique that underlying this decision is the message that all that states need to do in order to avoid an ICC investigation is to refuse to cooperate with the Court (see here and here). It has also been suggested that this decision is part of a broader effort by ICC judges to control the Prosecutor’s investigative priorities (see here).  

In this two-part post, we seek to contribute to the ongoing discussions by offering some thoughts on two particular points of contention. In this first post, we offer some comments on the PTC’s decision regarding the interests of justice. In particular, (a) we argue that the PTC did have the power, under Art. 15(4) of the Statute, to review whether the interests of justice should bar the opening of an investigation, and (b) while noting the problems with taking lack of state cooperation and budgetary issues into account in this decision, we argue (building on our earlier work here and here) that there might be circumstances where it is appropriate for the PTC and the Prosecutor to take such issues into account as a part of the interests of justice analysis.

Our second post will consider the way in which the PTC decision dealt with international humanitarian law, and more specifically, the territorial scope of application of war crimes in non-international armed conflicts (NIAC).  Read the rest of this entry…

 

The Murder of Jamal Khashoggi: Immunities, Inviolability and the Human Right to Life – Part IV: After the Attack

Published on April 17, 2019        Author: 

Prior posts in this series examined the legal situation before and during the attack on Khashoggi; this one examines its aftermath. After Khashoggi’s death, the substantive negative and positive obligations were extinguished, but the positive procedural obligation to investigate his death was triggered for both Saudi Arabia and Turkey. Khashoggi was subject to the jurisdiction of both states at the moment of his death. Like the substantive positive obligation to protect life, the procedural obligation to investigate is also one of due diligence, i.e. it does not require the state to do the impossible, but only what could reasonably be expected of it in the circumstances. In other words, it is inherently flexible. Investigations into allegations of violation of the right to life must always be independent, impartial, prompt, thorough, effective, credible and transparent, and in the event that a violation is found, full reparation must be provided.

It is manifest that Saudi Arabia is in violation of its procedural obligation to investigate Khashoggi’s death, on multiple grounds. Its agents covered up the evidence of the murder and actively obstructed Turkish efforts to investigate it. Its own internal investigation has lacked any transparency. It is obvious that Saudi law enforcement authorities have no real independence from the executive, the conduct of which they are supposed to be investigating, particularly with regard to the question of whether the crown prince ordered Khashoggi’s killing or knew that the operation would take place. It is equally obvious that the outcome of the Saudi trial of 11 unnamed individuals charged with Khashoggi’s death, which is shrouded in secrecy, is going to be determined by whatever the Saudi royals want the judges to say rather than by any kind of genuine pursuit for the truth.

In short, there is simply no doubt that Saudi Arabia is in violation of the procedural limb of the right to life. The position of Turkey is, of course, very different. As a general matter Turkish authorities have demonstrated willingness to effectively investigate Khashoggi’s death, and indeed much of what we know of his killing is directly the product of their investigative efforts. Had Turkey wanted to be complicit in the Saudi cover-up of the murder, it easily could have been, but it chose differently.

That said, the work of the Turkish investigators has also been subject to considerations of high politics. In particular, it has been limited and will be limited by whatever goals President Erdogan – no huge champion of the freedom of the press or human rights more generally – wishes to achieve in his management of the Khashoggi affair. And there are a number of specific decisions made by Turkish authorities that are at the very least arguably inconsistent with Turkey’s obligation under the ECHR and the ICCPR to effectively investigate Khashoggi’s death: (1) allowing the members of the Saudi hit-team to leave Turkey; (2) allowing the Saudi consul-general to leave Turkey; (3) delaying the search of the premises of the consulate; (4) delaying the search of the residence of the consul-general; (5) possible issues with searches of the consulate’s vehicles.

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The Murder of Jamal Khashoggi: Immunities, Inviolability and the Human Right to Life – Part III: During the Attack

Published on April 17, 2019        Author: 

The previous post in the series looked at the situation that preceded the attack on Khashoggi by Saudi agents; in this one we move to the time of the attack itself. Saudi Arabia’s violation of its obligation not to deprive individuals arbitrarily of their life under Article 5 of the Arab Charter and customary IHRL is manifest, in the sense that Saudi Arabia could not offer any kind of justification for Khashoggi’s killing that could be regarded as even potentially legitimate from the standpoint of the right to life. What is not obvious, however, is whether the Charter and the relevant customary rule even applied to Khashoggi, i.e. that they protected him while he was located outside Saudi territory.

Extraterritoriality

This is again a question of extraterritorial application, but this time of the negative obligation to refrain from using lethal force without justification. And this is a question that is in no way unique to the Khashoggi killing. We have confronted it repeatedly in the past couple of decades, whether in the context of the use of lethal force in armed conflict or in plain or not-so-plain state-sponsored assassinations. From drone strikes in the war on terror, to the killing of Osama bin Laden in Pakistan by US special forces, to the assassination of Alexander Litvinenko and the attempted assassination of Sergei and Yulia Skripal by Russian secret agents, to the killing of Kim Jong-nam in Malaysia on the orders of his half-brother, the North Korean dictator Kim Jong-un – all of these cases raise the fundamental threshold question of whether the target of the use of force is protected by human rights law at all. As a general matter, powerful states have been reluctant to accept that human rights treaties would apply to kinetic uses of force outside their territory, especially in areas not within their control, because they tend to see IHRL as an excessive constraint on their freedom of action.

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The Murder of Jamal Khashoggi: Immunities, Inviolability and the Human Right to Life – Part II: Before the Attack

Published on April 16, 2019        Author: 

This post will examine the legal situation before the attack on Khashoggi had materialized. The main obligation of Saudi Arabia in that regard is the same as the one during the attack itself, the negative obligation to refrain from arbitrary deprivations of life, and I will therefore address it in the next post in the series. Here, however, I will look at the positive obligation to protect Khashoggi’s right to life on the part of the United States and Turkey.

The duty to protect life

Three basic questions need to be answered with regard to the positive obligation to protect an individual. First, at what point does it arise, i.e. what is its scope of application. Second, once that threshold is crossed, what is the standard of conduct expected of the protecting state. Third, whether on the facts the state acted accordingly, with due diligence, taking all reasonable steps it could have been expected to take. Human rights bodies have extensively dealt with these questions in their case law, e.g. in the Osman jurisprudence of the ECtHR and recently by the Human Rights Committee in its General Comment 36. The threshold and the standard of conduct issues both require that a balance be struck between, on the one hand, the need for states to act affirmatively to protect the life of individuals from third parties, and, on the other hand, the need to avoid imposing unrealistic and excessive burdens on states.

Threshold inquiry: foreseeability of the threat

On the facts of Khashoggi’s killing, therefore, the first question is whether either the United States or Turkey knew, or ought to have known, of a real and immediate risk to Khashoggi’s life at the hands of the government of Saudi Arabia. Was, in other words, the threat to Khashoggi’s life reasonably foreseeable to either state? The threshold standard does not require actual knowledge or certainty of such a threat; it is an assessment of risk. This assessment will necessarily be contextual, and will always depend on (1) the information the state actually had in its possession at the relevant time and (2) information that it did not possess but could have obtained as a reasonable follow-up from the information it did actually already have.

The issue, therefore, is what the United States and Turkey knew about the Saudi threat against Khashoggi’s life, and when they obtained such information. Obviously, any appraisal of what these governments actually knew can at this moment only be tentative and incomplete, in the absence of some kind of investigatory process, whether internal or external, in that regard. That said, as far as we are able to understand this today, what did the two governments actually know?

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The Murder of Jamal Khashoggi: Immunities, Inviolability and the Human Right to Life – Part I: Introduction

Published on April 16, 2019        Author: 

On 2 October 2018, Jamal Khashoggi, a dissident Saudi journalist residing in the United States, where he was a columnist for the Washington Post, was murdered in the Saudi consulate in Istanbul. He was visiting the consulate to obtain a certificate of divorce from his former wife, so that he could proceed to marry his Turkish fiancée, Hatice Cengiz, who was waiting for him in a car outside the consulate. According to media reports relying on the findings of the governments of Turkey and the United States, Khashoggi was killed by Saudi agents and his body was then dismembered with a bone saw; his remains are yet to be found.

It has now been six months since Khashoggi’s killing. Saudi Arabia is conducting a secret trial of 11 individuals accused of his murder; the trial is widely regarded as an attempt to whitewash the involvement in the killing of the highest levels of the Saudi government. The UN Special Rapporteur for extrajudicial, summary or arbitrary executions, Agnes Callamard, has launched an investigation into Kashoggi’s death as part of her mandate; as of the time of writing, she has published a set of preliminary observations and plans to submit a final report to the UN Human Rights Council in June. Her report, based inter alia on a field visit to Turkey, concluded (paras. 10 and 7) that the evidence ‘demonstrates a prime facie case that Mr. Khashoggi was the victim of a brutal and premeditated killing, planned and perpetrated by officials of the State of Saudi Arabia and others acting under the direction of these State agents,’ a ‘grave violation’ of the human right to life.

Some legal issues that arise in that regard are trivial, even if they are politically extremely controversial. For example, it is legally irrelevant whether, in fact, the Saudi crown prince Mohammed bin Salman ordered Khashoggi’s death or not. Per the customary rule codified in Article 7 of the ILC Articles on State Responsibility, Saudi Arabia incurs state responsibility for an internationally wrongful act committed by its organs acting in their official capacity, such as intelligence and state security officials, even if that act was committed ultra vires. Whether the crown prince’s underlings exceeded his orders or failed to inform him of the supposedly unauthorized operation – which involved a team of 15 agents, including a forensics expert specializing in rapid dissections, and two private jets – simply does not affect the attribution of, and hence responsibility for, the operation to Saudi Arabia.

It is similarly unquestionable, as Steve Ratner explained on Lawfare, that the Saudi operation against Khashoggi was a violation of Turkey’s sovereignty and of its rights under diplomatic and consular law. But while condemning Saudi Arabia for these violations would be both right and without difficulty, for international law to care only about the violations of the rights of the state in which he was killed would also profoundly fail to legally capture our sense of moral outrage over Khashoggi’s death. In addition to any criminal responsibility that may exist under either Turkish or Saudi domestic law, the most serious violation of international law at stake here is that of Khashoggi’s human right to life, and an attempt – ultimately unsuccessful due to the operation’s public exposure – to forcibly disappear him. This violation is compounded by that of the freedom of expression, since the reason for Khashoggi’s killing was his speech critical of the Saudi regime, and that of the prohibition of cruel, inhuman and degrading treatment regarding Khashoggi’s next of kin, due to the manner of his killing and the desecration and disappearance of his corpse.

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The Assange case and the UK’s global defence of media freedom

Published on April 15, 2019        Author: 

Human rights advocates often point to the lack of consistency and coherence between states’ stated commitments, on the one hand, and their actions, on the other. Even then, the tensions surrounding the UK’s recent approach to the goal of protecting media freedom globally and its projection seem striking.

Within less than a week, the UK government has gone from showcasing its new campaign to defend media freedom – specifically the appointment of the Foreign Secretary’s Special Envoy and a panel of legal experts “to support countries to repeal outdated and draconian laws and strengthen legal mechanisms to protect journalists”, as well as an international conference to be held in London on 10 and 11 July, co-hosted with the Canadian government (on 5 April) – to facing a chorus of warnings from wide range of human rights organisations, authorities and activists  – including the American Civil Liberties Union, Human Rights Watch, the Committee to Protect Journalists, the Knight First Amendment Institute, the UN Special Rapporteur on freedom of expression, David Kaye, and Pentagon Papers whistleblower, Daniel Ellsberg – that the UK’s possible extradition of Julian Assange to the United States to face, at the moment, a single charge of conspiracy “to commit computer intrusion” would pose a threat the lawful and legitimate activity of journalists, especially their communications with their sources, setting a “dangerous precedent” for the future prosecution of “legacy” news media organisations.

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Drėlingas v. Lithuania (ECHR): Ethno-Political Genocide Confirmed?

Published on April 15, 2019        Author: 

The European Court of Human Rights on 12th of March issued a judgment in the case of Drėlingas v. Lithuania (Application no. 28859/16). The case at the ECHR was considered under Article 7 and focused on the principle of nullum crimen sine lege. However, in broader terms this case dealt with the definition of genocide, and the protected group issue in particular. This judgement continues a series of judgements related to Soviet mass repressions in the Baltic States after they were occupied and annexed by the Soviet Union and “sovietised” in a most brutal way from 1940 up to Stalin’s death in 1953. In fact, this case is a continuation of the case Vasiliauskas v. Lithuania (Application no. 35343/05), discussed on this blog previously

The main facts of the Drėlingas case are as follows: Drėlingas was an operative of the soviet repression structures (MGB/KGB) and in 1956 he participated in the arrest of one of the most famous anti-soviet armed resistance (partisans) leaders – A. R. (nome de guerre “Vanagas”) and his wife B. M. “Vanda”. After being captured, Vanagas was horribly tortured, maimed, then tried by the Soviet court and eventually executed, his wife was deported to Siberia. These events happened after the active armed resistance was almost over, while Vanagas and his wife were still on the run. After restoring Lithuania’s independence in 1990, Drėlingas was put on trial in 2014 and sentenced for his participation in genocide, as an accessory to the crime.

The last sentence perhaps needs further explanation. Back in the 1990s, Lithuania was one of a handful of countries that adopted a broader definition of genocide in its national laws; it included political and social groups together with national, ethnic, racial and religious. The main aim of this was to address the historic Soviet crimes. However, it soon became clear that the direct inclusion of political and social groups in the genocide definition created a conflict with the internationally accepted definition of genocide. Another approach was needed, and it was tested in the case of Vasiliauskas (mentioned above). Read the rest of this entry…

 
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Announcements: CfP Dialogues on International Law Conference; UN Audiovisual Library of International Law; CfS University of Hamburg Faculty of Law; CfP South Asia in the Era of International Courts and Tribunals

Published on April 14, 2019        Author: 

1. Call for Papers: Dialogues on International Law Conference. The 3rd Conference “Dialogues on International Law” will take place at Di Tella Law School (Buenos Aires) on 29 October 2019. The general theme of the conference will be “Change in International Law”. Di Tella Law School invites the submission of original papers in Spanish, Portuguese and English. The Conference seeks to bring together scholars in International Law and related disciplines, such as IR, History, Economics, and Philosophy, to examine contemporary issues concerning the international legal system, the international community, and particularly Latin America. The keynote lecture will be by Professor Anne Orford (Melbourne Law School), who will speak on: “Regional Orders and the Future of International Law: The End of Geography or a New Geopolitics?” For the full call for papers see here

2. New Addition to the UN Audiovisual Library of International Law. The Codification Division of the United Nations Office of Legal Affairs recently added the following lecture to the Lecture Series of the United Nations Audiovisual Library of International Law (AVL) website: Mr. Juan José Ruda Santolaria on “Reflections on international organizations, fora or groups at the international level: the implications of international juridical personality” (in Spanish). The Audiovisual Library is also available as a podcast, which can be accessed through the preinstalled applications in Apple or Google devices, through Soundcloud or through the podcast application of your preference by searching “Audiovisual Library of International Law”. The UN Audiovisual Library of International Law provides high quality international law training and research materials to users around the world free of charge.

3. Call for  Submissions: University of Hamburg Faculty of Law. The University of Hamburg Faculty of Law has published a call for  submissions for young scholars to discuss their research (chapter of a doctoral thesis, post doc paper, other drafts or research ideas). The workshop will be held from 20 – 21 September 2019 in Hamburg.  Abstracts can be submitted to workshop-PIL {at} uni-hamburg(.)de. The deadline is 10 June 2019. For more on this, see here

4. Call for Papers: South Asia in the Era of International Courts and Tribunals. The Faculty of Legal Studies, South Asian University, New Delhi (India) is organizing a two days’ international conference on ‘South Asia in the Era of International Courts and Tribunals’ on 28 – 29 February 2020. The conference theme invites engagement with a range of issues broadly falling within the following three sub-themes: (1)  The Composition and Competence of International Courts and Tribunals and the Role of South Asian Countries; (2) The Strategies and Advocacy before International Courts and Tribunals and South Asian Countries; and (3) The Impact of International Courts and Tribunals on the Governance of South Asian Countries. Interested scholars are invited to submit one abstract of 400–500 words, along with a CV. The deadline for submissions is 30 June 2019.  Further details can be found here.  
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