Internationale Terrorismusbekämpfung Und Menschenrechte Entwicklungen 2003/2004 Wolfgang S

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Internationale Terrorismusbekämpfung Und Menschenrechte Entwicklungen 2003/2004 Wolfgang S Deutsches Institut für Menschenrechte German Institute for Human Rights Zimmerstrasse 26/27 D-10969 Berlin Phone: (+49) (0)30 – 259 359 0 Studie Fax: (+49) (0)30 – 259 359 59 [email protected] mpfung und Menschenrechte | Entwicklungen 2003/2004 ä Internationale Terrorismusbekämpfung und Menschenrechte Entwicklungen 2003/2004 Wolfgang S. Heinz, Jan-Michael ArendWolfgang | Internationale Terrorismusbek Wolfgang S. Heinz Jan-Michael Arend www.institut-fuer-menschenrechte.de Impressum Deutsches Institut für Menschenrechte German Institute for Human Rights Zimmerstr. 26/27 D-10969 Berlin Phone (+49) (0)30 – 259 359 0 Fax (+49) (0)30 – 259 359 59 [email protected] www.institut-fuer-menschenrechte.de Gestaltung: iserundschmidt Kreativagentur für PublicRelations GmbH Bad Honnef – Berlin Titelphoto: dpa 2. Auflage August 2005 ISBN 3-937714-04-9 Studie Internationale Terrorismusbekämpfung und Menschenrechte Entwicklungen 2003/2004 Wolfgang S. Heinz Jan-Michael Arend Die Autoren Die Autoren Wolfgang S. Heinz, Dr. phil. habil., Privatdozent für politische Wissenschaft an der Freien Universität Berlin und wissenschaftlicher Mitarbeiter am Deutschen Insti- tut für Menschenrechte. Arbeitsschwerpunkte: Terroris- musbekämpfung, Menschenrechtsdialoge und VN-Men- schenrechtsschutz. Jan-Michael Arend, Volljurist, Studium der Rechts- wissenschaft mit Schwerpunkt Völkerrecht sowie zu- sätzlich Nordamerikastudien an der Freien Universität Berlin, Referendariat mit den Schwerpunkten Straf- recht sowie Ausländer- und Asylrecht, ebenfalls in Berlin; arbeitete am Deutschen Institut für Menschenrechte von November 2003 bis Juli 2004. 4 Vorwort Vorwort Der zweite Bericht des Deutschen Instituts für Men- Ein Jahr später haben die im Mai 2004 öffentlich be- schenrechte zum Menschenrechtsschutz im Rahmen kannt gewordenen Folterungen vor allem in Irak die der Terrorismusbekämpfung deckt den Zeitraum von Befürchtungen leider in einem Ausmaß bestätigt, das Mai 2003 bis Juli 2004 ab. Die Anschläge von Tunis damals noch gar nicht absehbar war. über Bali, Riad, Moskau bis zu Madrid zeigen, dass vom Terrorismus weiterhin erhebliche Gefahren ausgehen. In der vorliegenden Folgepublikation werden wesentli- Wie kann sich die internationale Staatengemeinschaft che Ereignisse zwischen Mai 2003 und Mitte Juli 2004 gegen die Bedrohung des Terrorismus zu Wehr setzen, auf der Basis von Sekundärquellen, die sich in der Ver- ohne die Werte, für die sie einsteht, preiszugeben? gangenheit als zuverlässig erwiesen haben, behandelt. Im Vordergrund stehen die Fragen, wie Staaten gegen Demokratien können in diesem Kampf in beunruhigen- Terrorismus, gegen wirkliche und vermeintliche Terroris- dem Maße an Substanz verlieren, wenn sie Verletzungen ten, vorgehen und welche Kontrollmechanismen Men- der Menschenrechte und des Humanitären Völkerrechts schenrechtsverletzungen abwenden könnten. begehen, oder wenn manche Politikerinnen und Politi- ker oder die Medien ein Klima erzeugen („Globaler Krieg Die Studie wendet sich an Interessierte in Politik, Wis- gegen den Terrorismus“), in dem solche Verletzungen senschaft und Medien und nicht zuletzt auch an die gleichsam schon präventiv als Notwehrmaßnahmen ge- allgemeine Öffentlichkeit. Sie schließt mit einigen Em- rechtfertigt, entschuldigt und damit auch in der Praxis pfehlungen für die deutsche Außen- und Verteidigungs- wahrscheinlicher werden. Die Menschenrechtsverletzun- politik. gen und Kriegsverbrechen in Irak und Afghanistan sind hierfür Beispiele. Abschließend sei allen gedankt, die durch ihre Mit- arbeit und kritische Lektüre zu dieser Studie beigetra- Im Juli 2003 veröffentlichte das Deutsche Institut für gen haben, besonders Anna Würth, Bernhard Schäfer, Menschenrechte eine erste Studie unter dem Titel „Inter- André Quack, Katrin Schweppe, Stella Ogunlade und nationale Terrorismusbekämpfung und Menschenrech- Anne Sieberns, die von der Bibliothek aus immer wieder te“, die wesentliche Ereignisse von Oktober 2001 bis entscheidende Hilfestellung gab. April 2003 berichtete, diese analysierte sowie Empfeh- lungen formulierte. Die Studie hob hervor, dass es im Rahmen der Bekämpfung des Terrorismus auch in de- mokratischen Staaten zu rechtsstaatlich bedenklichen Kontrollverlusten und sogar zur gezielten Einrichtung August 2004 „rechtsfreier Inseln“ für Gefangene gekommen ist. Zu den Deutsches Institut für Menschenrechte Kritikpunkten gehörten insbesondere Verletzungen der Menschenrechte und des Humanitären Völkerrechts in Afghanistan und Guantánamo/Kuba. Die Studie for- Heiner Bielefeldt derte eine umfassende und unabhängige Menschen- Direktor rechtsbeobachtung des Kampfes gegen den Terrorismus, vor allem wenn dieser in einer Kriegssituation geführt Frauke Seidensticker wird. Stellvertretende Direktorin 5 6 Inhalt Inhalt Zusammenfassung . 8 3. Sicherheitspolitik und Menschenrechte . 87 1. Internationale 3.1 Sicherheitspolitische Konzepte und Terrorismusbekämpfung . 12 Mandatierung internationaler Einsätze für die Bundeswehr . 87 1.1 Vereinte Nationen und Terrorismusbekämpfung: 3.2 Deutsche Verteidigungspolitik und Zur Rolle von Sicherheitsrat, Generalversamm- Auslandseinsätze der Bundeswehr. 88 lung, Menschenrechtskommission und Hochkommissariat für Menschenrechte . 12 1.2 Menschenrechte und 4. Schlussfolgerungen und Empfehlungen Humanitäres Völkerrecht . 14 an Bundesregierung und Bundestag . 96 1.3 Zur Rolle der Terrorismusbekämpfung in der G8-Staatengruppe. 16 1.4 Zur Politik der Europäischen Union (EU) . 16 Abkürzungsverzeichnis . 102 2. Menschenrechtsverletzungen – Literatur . 104 Ausgewählte Länderbeispiele . 22 2.1 USA . 22 Anhang 2.1.1 Guantánamo Bay . 23 2.1.2 Terrorismusbekämpfung im Inland . 35 Dokumente 2.1.3 Strafverfahren . 38 1) Resolution der Menschenrechtskommission 2.1.4 Einschränkung von Freiheitsrechten – der Vereinten Nationen 2004/87 USA Patriot Act . 38 „Protection of human rights and fundamental 2.2 Großbritannien . 44 freedoms while countering terrorism“ . 109 2.3 Israel . 46 2) Beschluss des Deutschen Bundestages: 2.4 Afghanistan . 50 Für die Einhaltung der grundlegenden 2.5 Irak . 57 Menschenrechte und Grundfreiheiten 2.6 Russische Föderation. 76 in Guantanamo Bay 2.7 Volksrepublik China . 81 (angenommen am 25. März 2004) . 111 2.8 Vergleichende Betrachtungen und Fazit . 83 7 Zusammenfassung Zusammenfassung International erfolgt der Kampf gegen den Terrorismus dem Humanitären Völkerrecht und dem Recht zum einerseits durch Zusammenarbeit zwischen den Staaten Schutz von Flüchtlingen in Einklang gebracht werden. im Rahmen der Vereinten Nationen (Anti-Terror-Aus- Bei den Vereinten Nationen sind die Möglichkeiten zur schuss des VN-Sicherheitsrates), andererseits durch eine Beobachtung der Staatenpraxis, die sogenannten Mo- Länderkoalition von mehr als 60 Staaten unter Führung nitoring-Mechanismen, beim Thema Terrorismusbe- der USA (Operation Enduring Freedom). Zu ihnen gehören kämpfung nur schwach entwickelt. Zumindest bisher Demokratien, autoritär regierte Länder und Diktaturen. muss die Arbeit der Vereinten Nationen zu diesem komplexen und sich rasch verändernden Themenbereich Auch im Berichtszeitraum Mai 2003 bis Juli 2004 ist es als unzureichend beurteilt werden, besonders auf dem zu einer erheblichen Zahl von terroristischen Anschlä- Gebiet der Länderberichterstattung. Sie hängt freilich gen gekommen, wenn auch nicht zu einem neuen An- entscheidend von den Impulsen und dem politischen griff vom Ausmaß des 11. September 2001. Vom Terro- Willen ihrer Mitgliedstaaten ab, und das heißt, davon, rismus gehen weiterhin erhebliche Gefahren aus. Die ob und inwieweit diese bereit sind, die VN mit einer internationale Staatengemeinschaft muss sich gegen kritischen Beobachtung der Terrorismusbekämpfung die Bedrohung des Terrorismus entschieden zu Wehr zu beauftragen und ob sie Empfehlungen gegenüber setzen. Damit stellt sich die Frage, welche Strategien aufgeschlossen sind. Bisher ist es nicht gelungen, die und Regeln für die Bekämpfung des Terrorismus gelten so genannten Monitoring (Beobachtungs-)-Mechanis- und wer ihre Einhaltung überprüft. men im Bereich der Terrorismusbekämpfung wirksam zu verbessern. Entscheidend ist es, auch bei der Bekämpfung des Terro- rismus internationale Menschenrechtsnormen und an- Eine Zusammenarbeit zwischen dem aus Mitgliedern dere relevante völkerrechtliche Vorschriften einzuhalten. des Sicherheitsrates zusammengesetzten Anti-Terror- Eine Politik der Terrorismusbekämpfung, die hier unsen- Komitee (CTC) und dem VN-Hochkommissariat für Men- sibel vorgeht oder gar versagt, stellt nicht nur das Selbst- schenrechte (HKMR) gibt es bisher nicht. Die Länder- verständnis von Demokratien in Fragen. Sie fördert auch berichterstattung der Menschenrechtskommission Sympathien für Terroristen/innen und gewaltsame An- (MRK) im Hinblick auf eine menschenrechtskonforme schläge gegen den Westen, besonders in einer Weltre- Terrorbekämpfung ist nur schwach ausgebildet, wäh- gion wie dem Nahen Osten, in dem historische und rend die thematische Berichterstattung wichtige Pro- aktuelle Unrechtserfahrungen besonders des Kolonialis- bleme wie Folter aufgegriffen hat. In der Frage eines um- mus, des Dauerkonfliktes Israel/Palästina und der Unter- fassenden Abkommens der Vereinten Nationen gegen stützung autokratischer, repressiver Regierungen durch Terrorismus konnten keine Fortschritte erzielt werden. westliche Politik als problematisch erlebt werden. Das Fehlen einer international anerkannten Definition erleichterte es Regierungen, nach dem 11. September Im ersten Teil der
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