On Friday May 8, 2009 the UN inquiry team installed by the UN Human Rights Council in January to investigate alleged war crimes during Operation Cast Lead held its first closed door meeting in Geneva. The team of four investigators is headed by the South African former UN war crime prosecutor Richard Goldstone. After the meeting Goldstone stressed that the investigators would take a “law-based approach” rather than a “political approach” for the report they are to prepare for the UN Human Rights Council.
As a start I would say such a law-based approach would be a refreshing improvement in dealings of the UN Human Rights Council that is mostly dominated by Muslim countries and their allies that abuse it for their ends. The most recent example of their understanding of the use of international organizations and their function for the world was the Council’s Durban II conference on racism in Geneva. The only thing that came to my mind to this was a modification of a German saying: They offered the stage for an exorbitant debate about the admittedly existing splinter in the eye of the other while they declined to see the plank in front of their own forehead.
Anyway, I refrained so far from going into to mud of the once well-meant Durban process. I should stick to this policy. I am much more intrigued by two other questions concerning Goldstone’s mission: I. What might such a “law-based approach” mean? II. Do the available legal rules today work when it comes to dealing with terrorism and guerilla-like warfare?
- What might such a “law-based approach” mean?
For starters some clarification of terms: Formally, Law means the sum of all effective legal norms (written and unwritten). Legal norms again are rules of behavior for single individuals or of communities meant to organize the co-existence and to solve conflicts that can be enforced with organized compulsion.
National Law manages co-existence and conflict resolution within the borders of a state. Legal rules are determined by organs of legislature of the state and executed by its authorities. Setting rules and enforcing them are basic rights of a sovereign state. Other states or their organs must not interfere unless the state has submitted to contrary provisions of International or Supranational Law or its actions endanger world peace.
Private International Law has often a Public International Law background yet is no part of Public International Law but rather part of National Law. It identifies all national legal norms that define the law to be applied if a certain subject touches several national legal systems. National domestic authorities and courts are concerned with Private International Law once they have to deal with issues with a foreign element.
Supranational Law is an integrative part and a peculiarity of Public International Law. It is mostly used in connection with legal matters concerning the European Union since the Union’s in-between position between a state and a conventional international organization. Member states transfer traditional competences of sovereign states from a national level to the higher level of the Union. The subordinate organization is then able to make binding decisions for the affiliated states even when not all members agree.
Public International Law is a supranational legal system regulating the relationships between international legal personalities on the basis of equality. Main difference between National and Public International Law is the absence of a central legislative organ in Public International Law. Public International Law is not imposed on states but rather presents a coordination system, even though there are tendencies towards a central law-making too.
Mr. Goldstone and his team will definitely not deal with Supranational Law, a term I only included in the above list to clarify its meaning. National Law and thereby Private International Law as part of it is not an option either as such an evaluation by the team would infringe the rights of the sovereign state(s) involved. In the end, all that’s left from the list is Public International Law.
Subjects of Public International Law are international legal personalities. International legal personalities are first and foremost states. A state is a political association with effective sovereignty over a geographical area and representing a population (Three Elements Theory by Jellinek: national territory, public authority, body politic/people). The recognition by other states as state is not necessary and has no constituting character at all.
Whereas Israel is indisputably a state under International Law with effective public authority over its territory and population the legal character of the Palestinians and the Gaza strip is in limbo.
In November 1947 the UN General Assembly adopted a resolution determining the partition of the then British mandatory territory into an Arab and a Jewish state. A Palestinian state should have been established alongside Israel in May 1948. However, an all-or-nothing policy adopted by the Arab side prevented the creation of a state at this stage of history.
In November 1988 the Palestinian National Council, legislative body of the PLO, proclaimed a State of Palestine. Up to today this state is recognized by about 100 countries. But as I said above this means in legal terms nothing as long as there are not all three elements of statehood fulfilled as well. The proposed state for the Palestinian people covers the territory of the West Bank and of Gaza though the exact borders are still matter of dispute. Hence, though we can speak of a people and a state territory full sovereignty over the covered geographical area is missing and so the State of Palestine is no state under International Law.
Consequentially, Palestine’s current status in the UN is that of a “non-member entity”, not that of a state. Therefore, traditionally Palestine is no subject of International Law. So, here we hit on a legal problem. Mr. Goldstone and his teams want to use a “law-based approach” to evaluate both sides of the conflict but we are running out of legal systems he could use.
However, I am pretty sure Mr. Goldstone has the intention to use International Law, explicitly the Law of War that comprises of the Jus ad bellum (law concerning acceptable justification to use armed forms) and Jus in bello (law concerning acceptable conduct in war). Politically, this is certainly what is asked for. Since politics and law in general and politics and International Law in particular can’t be seen apart from each other Mr. Goldstone might simply overlook the little flaw in his “law-based approach”.
- Do the available legal rules today work when it comes to dealing with terrorism and guerilla-like warfare?
And so Mr. Goldstone and his team will check if the war conduct was governed by the principles of distinction, proportionality and military necessity/ minimum force.
Distinction: Acts of war should be directed towards enemy combatants, not towards non-combatants caught in circumstances they did not create.
Proportionality: An attack cannot be launched on a military objective in the knowledge that the incidental civilian injuries would be clearly excessive in relation to the anticipated military advantage.
Minimum force: An attack or action must be intended to help in the military defeat of the enemy, it must be an attack on a military objective, and the harm caused to civilians or civilian property must be proportional and not excessive in relation to the concrete and direct military advantage anticipated.
This sounds like a pretty clear checklist even though it sure leaves wiggle room. But what was once workable in traditional warfare when regular armies met, their members clearly distinguishable by their uniforms, reality today has changed.
Regular armies fight with high-tech weapons terrorists who are not less armed. They too know the international rules the armies and the countries behind them are bound to obey and they too know how to use them to their ends. They dress like civilians and they hide themselves and their arsenal in highly populated areas. Sometimes they even organize human shields made up from women and children. They know that the pictures of injured or dead will go around the world in no time and will produce an outcry.
It puts regular armies that act for subjects bound by International Law and that will need to answer the international opinion, international law and international press in one dilemma after another.
On the one hand, no country takes the step to engage in a war, especially one conducted with guerilla tactic by the opponent, easily. Other than that there needed to exist valid reasons to resort to the last resort to begin with, there had to be more – a situation that offered no other way out as one endangered the lives of so many and goals that seemed possible to achieve.
On the other hand, if only one side keeps to the rules it’s hard to achieve anything. No state can be expected to endure attacks into infinity. But once it takes action it will be the international bogeyman that kills children and their mothers lightheartedly.
What to do? As realities have changed so perhaps the rules should be adjusted too. Earlier on, nobody would have imagined that International Law may ever affect multinational co-operations or internationally active NGOs. But due to the increase of global trade, environmental deterioration on a worldwide scale, awareness of human rights violations, rapid and vast increase in international transportation and a boom in global communication it does.
As International Law is an open coordination system based mainly on customary law an adjustment can happen. This must not mean that civilians, who are caught undeliberate on a theatre of war, are less protected or that human rights take a back seat. But measures need to be taken that rules and rights are not abused and sovereign people are not trapped in Catch 22. Mr. Goldstone and his team’s work done under a “law-based approach” could be a trigger. We will see if he keeps his promise and we will see there the journey will take us.