James
Shemron C. Corro,
Juris Doctor Applicant-III,
Initial work: October 20, 2018, further edits on: June 7, 2019
“Historically,
terrorism falls in a category different from crimes that concern a criminal
court judge”
– Jürgen Habermas ,
German philosopher and sociologist in the tradition of critical theory and
pragmatism
The quote lays true to its substance. Indeed, Terrorism has required states to evaluate principles and balance interests. The subject-matter of terrorism has spawned unique relationships between states and, states with their own nationals. Since 1963, the international community has produced nineteen universal instruments in the form of conventions and protocols to prevent terrorism.[1] The conventions begin as international meetings of representatives from many nations. Many result to a general consensus about procedures or actions they will take on specific topics.[2] The usual output of these conventions are law-making treaties. A treaty is an international agreement concluded between States in written form and governed by international law.[3] Law-making treaties create general norms for the future conduct of the parties in terms of legal propositions, and the obligations are basically the same for all parties.[4] Some conventions in this case, bind state parties to enact legislation to counteract financing of terrorists and to suppress bombs.[5] Other conventions go as far as to suppress terrorism involving nuclear weapons.[6] These instruments must be read together with the Vienna Convention on the Law of Treaties. The Convention prescribes that the validity and continuance in force of a treaty may be based on pacta sunt servanda[7]. Pacta Sunt Servanda as a general principle of international law, states that a treaty in force is binding upon the parties and must be performed by them in good faith.[8]. Abrogation from the principle of pacta sunt servanda is allowable only in limited circumstances. These Circumstances must be fundamental. To be fundamental they must constitute as an essential basis of the consent of the parties to be bound by the treaty. The circumstances must transform the extent of obligations still to be performed under the treaty.[9]
Legal
Challenges already arise when requirements under international law come in
conflict with municipal law. The Question therefore is, may these fundamental
circumstances be considered by a state party unilaterally and serve as basis
for derogation from a treaty?
To
illustrate, the Philippines adopts generally accepted principles of
international law as part of the law of the land.[10] As
a party to several of these conventions, it is bound to enact municipal laws to
enforce agreements of treaties it has entered. One of the conventions that the
Philippines entered is the International Convention for the Suppression of the
Financing of Terrorism.[11]The
Convention requires state parties not to refuse a request for mutual legal
assistance on the ground of bank secrecy.[12] If
the Philippine government on its own findings consider events in the country as
fundamental, to the extent that it is unable or unwilling to provide mutual
legal assistance, May it derogate from the treaty despite the absence of
acquiescence of other state parties and refuse to provide mutual assistance?
I answer in the affirmative.
The Vienna Convention must be read alongside the Montevideo Convention on the
Rights and Duties of States.[13]
Article 5 of the Convention considers that fundamental rights of states are not
susceptible of being affected in any manner whatsoever.[14]
Article 1 of the same convention provides that qualifications of states include
the capacity to enter into relations with the other states.[15]
Necessarily, the capacity to enter relations include the capacity choose and
severe relations, which cannot be impaired through contract or treaty. The best
understanding of this criterion is that it means independence. It is that independence that provides a capacity
to enter into relations with other States, as a State.[16]
This, however, does not mean that a unilateral derogation from a treaty does
not come with its own set of consequences. As a remedy, parties may refer the
matter to the International Court of Justice (ICJ) under Article 36 and 37.[17]
The erring party may be held liable for reparations.[18]After
the merits of the proceedings, reparations are usually left to be decided
between state parties. In cases where there is difficulty in determining the
adequate amount of reparations, the ICJ may rule on the amount based on the
Articles on the Responsibility of States for Internationally Wrongful Act.[19]
Article 31 of the instrument provides that,
“The responsible State
is under an obligation to make full reparation for the injury caused by the Internationally
wrongful act.”[20]However,
this but leads to further questions. If entering into these instruments, come
with the price of subjecting the state-party to the terms and conditions of a
treaty and place them in the risk of reparations if a treaty is violated, then
why do states enter into these treaties in the first place? The standard
answer to this
question is that
states enter treaties
in order to
obtain gains from cooperation.[21]
The propensity of states to enter into bilateral and multilateral arrangements
concerning terrorism is correlated to the effects and degree of harm imposed by
terrorism. The origin of the state is due to the general agreement freely
entered into by equal and independent individuals living in a state of nature
to form themselves in to a community and obey a government established by them
for the protection of natural rights.[22]
If applied on an international scale, states come together for mutual aid and
protection. A State, just like individuals, would logically be more disposed to
enter into an agreement for so as long as mutual aid and protection outweigh the
costs. The intensity and effect of terrorism must be dissected to fully
appreciate the reasons why nations bind themselves together in treaties.
Terrorism
is now a global phenomenon, which must be addressed comprehensively.[23] Terrorism
around the world has incurred both human and material costs. The four deadliest
terrorist groups were responsible for 59 percent of all deaths in 2016. ISIL
was the deadliest group in 2016 with a 50 percent increase in deaths from its
previous peak in 2015. The group killed 9,132 people in 2016 with the majority
of these deaths occurring in Iraq.[24] Studies
in Europe show states have lost around €180 billion in GDP terms due to
terrorism between 2004 and 2016.[25]
South Asia was more affected than anywhere else in the world between 2008 and
2013 according to the Global Terrorism Database (GTD).[26] On
several mediums you can read first-hand experiences of the victims. During 9/11
attack, an executive working in the world trade centre, narrated the attack to
quote:
“When it hit, everything went
instantly black. You know how a little kid packs a pail of sand at the beach?
That’s what it was like in my mouth, my nose, my ears, my eyes—everything
packed with debris. I spat it out. I puked, mostly out of horror. I felt
myself: Am I intact? Can I move? I was all there. There was moaning. People
were hurt and crying all around me.”[27]
Tamir,
a photographer born and raised in Turkey has been photographing the aftermath
of terrorist attacks since he was a teenager. He describes, that life in the
country as erratic and one plagued by fear.
“One week [after a bombing],
normal life is starting to (return), but after one month (people fear) another
(attack) is coming and everything turns back again.” “Right after these bombings,”
he said, “the whole country is in shock. … Most of the time, people don’t go
outside for the next few days because they are afraid”.[28]
World
Leaders have thrown their lot, and have time and again, condemned terrorism.
Pope Francis has expressed the view that terrorism generates greater
inequalities and just like repression violates human rights.[29] An
optimistic quote President Obama: “”The threat from terrorism is real, but
we will overcome it.”[30]
The General Assembly heard today as it adopted by consensus a resolution
stressing the need for countries to join forces, with many Member States
reiterating that no one country nor Government could tackle the scourge alone.[31]
However, not all statements of state parties are reflective of a general
affinity of global cooperation against terrorism. Vladimir Putin, President of
Russia has recurrently blamed the United States for funding terrorists. To
quote Putin, ““95% of the world’s terrorist attacks are orchestrated by the
CIA,” and the St. Petersburg metro bombing must be investigated “with this in
mind. “[32]
Indeed,
Terrorism has brought several challenges to the doorstep of many nations. And
the fight against terrorism which requires global cooperation brings its own
set of tasks related with cooperation. These problems may be in the form of
jurisdictional challenges concerning the jurisdiction over a terrorist or even
a consensus on what acts should constitute as terrorism. The United Nations has
spent more than 20 years trying to form a consensus on what constitutes
terrorism, but has yet to succeed. Sticking points are usually about
conflicting national interests and unwillingness to change national legislative
traditions.[33]
As an example, China on November 2, 2017 for the fourth time blocked India, the
US and other nations’ bid to list Pakistan-based JeM chief and Pathankot terror
attack mastermind Masood Azhar as a global terrorist.[34]
China, in its statement, said that since Pakistan didn’t agree with India on
this issue, there is no “consensus” between the two directly affected
parties. Beijing made it clear that China will support the issue only if
Pakistan agrees with India.[35]
To
understand the effects of terrorism in the relationship between states we have
to understand the state under the auspices of international law. Article I of
the Montevideo Convention on Rights and Duties of States provides: ‘The State
as a person of international law should possess the following qualifications:
(a) a permanent population; (b) a defined territory; (c) government; and (d)
capacity to enter into relations with other States.[36]
The United Nations was
founded on the principle of sovereign equality between nations.[37]
And the Principle of respect for territorial sovereignty inevitably overlap
with those of the principles of the prohibition of the use of force and of
non-intervention.[38] Territorial integrity and political
independence are two core elements of Statehood. Territorial integrity refers
to the territorial ‘oneness’ or ‘wholeness’ of the State. As a norm of
international law, it protects the territorial framework of the independent
State and is an essential foundation of the sovereignty of States.[39]
From the foregoing we
could deduce from the rules, that no nation has the right to intervene in the
political affairs of one state, its citizens in its territory or its
independent capacity. No state may do things in the territory of another state
without the consent of the affected state.
Problems
arise in a hypothetical situation where Person X is a national of State A,
Person X resides in State B, X plans terrorist operations in State C, Executes
acts of terrorism in State D and escapes to State E and was arrested there. In
this situation there are at least 5 states involved. The Question is who has
authority and jurisdiction to try Person X?
Situations
such as these, are where treaties find their prominence. Article 6 of the International
Convention for the Suppression of Terrorist Bombings provide the grounds of
acquiring jurisdiction.[40]
This is to be viewed in correlation with Article 8 which provides a situation
where a terrorist is arrested in the territory of one of the state parties and
there is refusal to extradite.[41]
However despite the existing treaty, there is still no clear and categorical
answer to the above situation. Each situation must be viewed in a case to case
basis. International law is, but a budding class of its own. Until now states
have difficulties balancing situations involving the principle of
non-intervention and human rights. Terrorism is a problem that traverses across
boundaries and is of such magnitude to compel nations to work together. It
exposes nations to problems historically recurring in the conduct of its
relations to other states. It, as well, pushes nations to re-evaluate and
reconsider traditional stances. Needless to say, it is a situation that has
forever changed the conduct of states and the face of the earth.
[1]
UNITED NATIONS Office of Counter-Terrorism (OCT), ,
http://www.un.org/en/counterterrorism/legal-instruments.shtml (last visited Oct
20, 2018).
[2] 530 FW
2, International Protocols, Treaties, and Conventions, Fish and Wildlife
Service Manual, U.S. Fish and Wildlife Service, , https://www.fws.gov/policy/530fw2.html (last
visited Oct 20, 2018).
[3] Vienna Convention on the law of treaties, No. 18232 (1969).
Article II, 1(a)
[4] Ian Brownlie, Principles of Public
International Law (Sixth ed. 2003).
[5]
United Nations, 1999 International Convention for the
Suppression of the Financing of Terrorism.
[6]
United Nations, INTERNATIONAL CONVENTION FOR THE
SUPPRESSION OF ACTS OF NUCLEAR TERRORISM (2005).
[7]
Vienna Convention on the law of treaties, No. 18232
(1969).
[8]
Ian Brownlie, Principles of Public International Law
(Sixth ed. 2003). pp. 591-592; Vienna
Convention on the law of treaties, No. 18232 (1969). Article 26
[9]
Ian Brownlie, Principles of Public International Law
(Sixth ed. 2003). P.595
[10]
Constitutional Commission of 1986, 1987 Philippine Constitution (1987).
[11] United Nations, International Convention For the
Suppression Of The Financing Of Terrorism (1999).
[12]
United Nations, International Convention For the Suppression Of
The Financing Of Terrorism (1999). Article 12 par. 2
[13]
Seventh International Conference of American
States., Montevideo Convention on Rights
and Duties of States (1934).
[14]
Seventh International Conference of American
States., Montevideo Convention on Rights
and Duties of States (1934).
Article 5
[15]
Seventh International Conference of American
States., Montevideo Convention on Rights
and Duties of States (1934). Article 1
[16]
Dakpo Akanda, EJIL: Talk! – The
Importance of Legal Criteria for Statehood: A Response to Jure Vidmar, https://www.ejiltalk.org/the-importance-of-legal-criteria-for-statehood-a-response-to-jure-vidmar/ (last
visited Oct 21, 2018).
[17]
United Nations, International Court of Justice (1945)
Article 36 and 38.
[18]
regarding-rights, The
International Court of Justice and the Question of Reparations Regarding Rights (2015), http://asiapacific.anu.edu.au/regarding-rights/2015/07/17/the-international-court-of-justice-and-the-question-of-reparations/ (last
visited Oct 21, 2018).
[19]
International Law Commission, Responsibility of States for Internationally
Wrongful Acts (2001).
[20]
International Law Commission, Responsibility of States for Internationally
Wrongful Acts (2001).
[21]
Thomas J. Miles & Eric A. Posner, Which States Enter Into
Treaties, And Why?, The Law School
The University of Chicago (2008).
[22]
John Lockes Social Contract Theory, , http://www.legalservicesindia.com/article/1726/John-Lockes-Social-Contract-Theory.html (last
visited Oct 21, 2018).
[23]
Global Cooperation, Tackling Root Causes Central to Fight against Terrorism,
World Leaders Stress on Third Day of General Debate | Meetings Coverage and
Press Releases, , https://www.un.org/press/en/2017/ga11950.doc.htm
(last visited Oct 21, 2018). Prime Minister Shahid Khaqan Abbasi of Pakistan
[24]
Global Terrorism Index 2017, (2017),
https://reliefweb.int/sites/reliefweb.int/files/resources/Global%20Terrorism%20Index%202017%20%284%29.pdf.
p.5
[25]
The cost of terrorism in Europe, , https://www.rand.org/randeurope/research/projects/the-cost-of-terrorism-in-europe.html
(last visited Oct 23, 2018).
[26]
Global Terrorism Index 2017,
(2017), https://reliefweb.int/sites/reliefweb.int/files/resources/Global%20Terrorism%20Index%202017%20%284%29.pdf.
[27]As
told to Cal Fussman, My Escape From the
81st Floor of the World Trade Center Esquire
(2015), https://www.esquire.com/features/what-ive-learned/ESQ0102-JAN_WTC_rev
(last visited Oct 24, 2018).
[28]
Turkey in the shadow of terror, , https://www.cnn.com/interactive/2016/07/world/turkey-terror-cnnphotos/
(last visited Oct 24, 2018).
[29]
CBC News · Posted: Mar 13, 2013 9:00 PM ET | Last Updated: March 14 & 2013,
Pope Francis: In his own words | CBC News
CBC (2013), https://www.cbc.ca/news/world/pope-francis-in-his-own-words-1.1349801
(last visited Oct 24, 2018).
[30]
Key quotes from Obama’s IS speech, September 11, 2014, https://www.bbc.com/news/world-us-canada-29152590
(last visited Oct 24, 2018).
[31]
General Assembly Unanimously Adopts Resolution Calling for Strong Coordinated
Action by Member States to Tackle Terrorism, Violent Extremism Worldwide |
Meetings Coverage and Press Releases, , https://www.un.org/press/en/2018/ga12035.doc.htm
(last visited Oct 24, 2018).
[32]
Putin: 95% Of World Terrorist Attacks Are Made By The CIA, Geopolitica.RU (2017), https://www.geopolitica.ru/en/news/putin-95-world-terrorist-attacks-are-made-cia
(last visited Oct 24, 2018).
[33]
When it comes to defining ‘terrorism,’ there is no consensus | PBS NewsHour, , https://www.pbs.org/newshour/nation/defining-terrorism-consensus
(last visited Oct 24, 2018).
[34] China blocks moves to list Masood Azhar as
global terrorist: Official | The Economic
Times
https://economictimes.indiatimes.com/news/defence/no-consensus-over-listing-azhar-as-global-terrorist-china/articleshow/61457780.cms (last visited October 24, 2018).
[35]
China Defends Terrorist Masood Azhar, Justifies UN Veto Of India’s Move, NDTV.com, https://www.ndtv.com/india-news/china-defends-terrorist-masood-azhar-justifies-its-veto-of-indias-move-at-united-nations-1924157
(last visited Oct 24, 2018).
[36]
Ian Brownlie, Principles of Public International Law
(Sixth ed. 2003); Seventh International
Conference of American States., Montevideo
Convention on Rights and Duties of States (1934).
[37] U.N.
Charter, art. 2(1)
[38] Military
and Paramilitary Activities in and Against Nicaragua (Nicar. V. U.S.), Merits
on the Judgment, 1986 I.C.J. 14, ¶251 (June 27). [hereinafter “Nicaragua Case”].
[39]
Territorial Integrity and Political Independence, , http://opil.ouplaw.com/view/10.1093/law:epil/9780199231690/law-9780199231690-e1116
(last visited Oct 24, 2018).
[40]
United Nations, International Convention for the Suppression of
Terrorist Bombings (1997).
[41]
United Nations, International Convention for the Suppression of
Terrorist Bombings (1997).