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Die Uiguren in Xinjiang Im Lichte Der Völkermordkonvention

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Die Uiguren in Xinjiang Im Lichte Der Völkermordkonvention Wissenschaftliche Dienste Ausarbeitung Die Uiguren in Xinjiang im Lichte der Völkermordkonvention Zum Tatbestand des Völkermordes, zu den rechtlichen Implikationen für deutsche Unternehmen und den Reaktionsmöglichkeiten der Staatengemeinschaft © 2021 Deutscher Bundestag WD 2 – 3000 - 027/21 Wissenschaftliche Dienste Ausarbeitung Seite 2 WD 2 - 3000 - 027/21 Die Uiguren in Xinjiang im Lichte der Völkermordkonvention Zum Tatbestand des Völkermordes, zu den rechtlichen Implikationen für deutsche Unternehmen und den Reaktionsmöglichkeiten der Staatengemeinschaft Aktenzeichen: WD 2 - 3000 - 027/21 Abschluss der Arbeit: 12. Mai 2021 (zugleich letzter Zugriff auf die Internetlinks) Fachbereich: WD 2: Auswärtiges, Völkerrecht, wirtschaftliche Zusammenarbeit und Entwicklung, Verteidigung, Menschenrechte und humanitäre Hilfe Die Wissenschaftlichen Dienste des Deutschen Bundestages unterstützen die Mitglieder des Deutschen Bundestages bei ihrer mandatsbezogenen Tätigkeit. Ihre Arbeiten geben nicht die Auffassung des Deutschen Bundestages, eines seiner Organe oder der Bundestagsverwaltung wieder. Vielmehr liegen sie in der fachlichen Verantwortung der Verfas- serinnen und Verfasser sowie der Fachbereichsleitung. Arbeiten der Wissenschaftlichen Dienste geben nur den zum Zeitpunkt der Erstellung des Textes aktuellen Stand wieder und stellen eine individuelle Auftragsarbeit für einen Ab- geordneten des Bundestages dar. Die Arbeiten können der Geheimschutzordnung des Bundestages unterliegende, ge- schützte oder andere nicht zur Veröffentlichung geeignete Informationen enthalten. Eine beabsichtigte Weitergabe oder Veröffentlichung ist vorab dem jeweiligen Fachbereich anzuzeigen und nur mit Angabe der Quelle zulässig. Der Fach- bereich berät über die dabei zu berücksichtigenden Fragen. Wissenschaftliche Dienste Ausarbeitung Seite 3 WD 2 - 3000 - 027/21 Inhaltsverzeichnis 1. Zum Tatbestand des Völkermordes nach Art. 2 der Völkermordkonvention 5 1.1. Einführung 5 1.2. Gegenstand und Gang der Untersuchung 8 1.3. Die Völkermordkonvention und der Tatbestand des Genozids 10 1.4. Die geschützten Gruppen nach der Völkermordkonvention 13 1.4.1. Die Uiguren als ethnische Gruppe 16 1.4.2. Die Uiguren als religiöse Gruppe 21 1.4.3. Zwischenfazit 24 1.5. Die objektiven Tathandlungen des Völkermords 25 1.5.1. Artikel 2 (a) : Die Tötung von Gruppenmitgliedern 26 1.5.2. Artikel 2 (b) : Die Verursachung schweren körperlichen oder seelischen Schadens 27 1.5.3. Artikel 2 (c): Die Auferlegung von zerstörerischen Lebensbedingungen 33 1.5.4. Artikel 2 (d): Die Verhängung von Maßnahmen zur Geburtenverhinderung 37 1.5.5. Artikel 2 (e): Die zwangsweise Überführung von Kindern 42 1.5.6. Zwischenfazit 45 1.6. Die subjektiven Voraussetzungen des Völkermords 45 1.6.1. Die Zerstörungsabsicht 46 1.6.1.1. Relevante Indizien und ihre Analyse 48 1.6.1.2. Zur restriktiven und extensiven Auslegung des Zerstörungsbegriffs 62 1.6.1.3. Zwischenfazit 67 1.6.2. Das (Teil-)Gruppenelement 67 1.6.3. Das Motivelement 69 1.7. Kontextualisierung der Rechtsprechung zum subjektiven Völkermordtatbestand (Zerstörungsabsicht) 71 1.8. Fazit 72 2. Rechtliche Implikationen der Situation der Uiguren für deutsche Wirtschaftsunternehmen in Xinjiang 73 2.1. Medienberichterstattung zur Rolle deutscher Wirtschaftsunternehmen in Xinjiang 73 2.2. Menschenrechtliche und unternehmerische Verantwortlichkeit von Wirtschaftsunternehmen in Xinjiang für ihre Lieferkette 75 2.2.1. VN-Leitprinzipien für Wirtschaft und Menschenrechte 75 2.2.2. Entwurf der Bundesregierung für ein Lieferkettengesetz 79 2.3. Strafrechtliche Verantwortlichkeit von deutschen Wirtschaftsunternehmen in Xinjiang 81 2.3.1. Strafbarkeit der Beihilfe 81 2.3.2. Beihilfehandlungen 82 2.4. Fazit 84 Wissenschaftliche Dienste Ausarbeitung Seite 4 WD 2 - 3000 - 027/21 3. Rechtliche Reaktionsmöglichkeiten und völkerrechtliche Verpflichtungen der Staatengemeinschaft 85 3.1. Einführung und Gang der Erörterung 85 3.2. Rechtlicher Rahmen für die Durchsetzung von Menschenrechtsverpflichtungen und die Sanktionierung von Menschenrechtsverletzungen 88 3.2.1. Zwingendes Völkerrecht und das Konzept der erga omnes- Verpflichtungen 88 3.2.2. Regelungen zur Staatenverantwortlichkeit 90 3.3. Rechtliche Durchsetzung von Menschenrechtsverpflichtungen 91 3.3.1. Klagen vor dem Internationalen Gerichtshof 91 3.3.2. Staatenbeschwerdeverfahren vor menschenrechtlichen Spruchkörpern 94 3.3.3. Unabhängige Untersuchung von Menschenrechtsverletzungen 95 3.4. Sanktionierung von Menschenrechtsverletzungen 97 3.4.1. Gegenmaßnahmen 97 3.4.2. Humanitäre Intervention 99 3.5. Verpflichtung zur Verhinderung eines Genozids 99 3.5.1. Geographischer Anwendungsbereich der Völkermordkonvention 100 3.5.2. Zeitliche Dimension 100 3.5.3. Inhalt der Verhinderungspflicht 101 3.6. Bestrafungspflicht und strafrechtliche Verfolgung 103 3.6.1. Regelungen über die Strafbarkeit 103 3.6.2. Universelle Strafverfolgung 105 3.6.3. Verfahren vor dem Internationalen Strafgerichtshof 105 3.6.4. Verfahren vor nationalen Strafgerichten 107 3.6.5. Exkurs: Zum Unterschied zwischen Völkermordverfahren vor nationalen Strafgerichten und Völkermordverfahren vor dem IGH 108 3.6.6. Völkerrechtliche Immunität als Verfahrenshindernis 109 3.7. Zur Befassung der Vereinten Nationen mit der Genozidfrage 113 3.7.1. VN-Sicherheitsrat 114 3.7.2. VN-Generalversammlung und Generalsekretariat 115 3.7.3. VN-Menschenrechtsrat 116 3.8. Befassung nationaler Parlamente mit der Frage „Völkermord an den Uiguren“ 118 3.8.1. Parlamentarische Praxis 119 3.8.2. Rechtsfragen zu schlichten Parlamentsbeschlüssen 121 Wissenschaftliche Dienste Ausarbeitung Seite 5 WD 2 - 3000 - 027/21 Teil I 1. Zum Tatbestand des Völkermordes nach Art. 2 der Völkermordkonvention 1.1. Einführung Am 19. Januar 2021 bezeichnete der damalige US-Außenminister Mike Pompeo im Namen der Trump-Administration die Unterdrückung der Bevölkerungsgruppe der Uiguren und anderer mehrheitlich muslimischer Minderheiten durch die chinesische Regierung als Genozid.1 Kurz darauf erklärte der zu diesem Zeitpunkt designierte US-Außenminister Antony Blinken, dass er diese Auffassung teile.2 Im aktuellen Menschenrechtsbericht des US-Außenministeriums, der am 30. März 2021 vorgestellt wurde, ist ebenfalls von einem Genozid an den Uiguren in China die Rede.3 Auch das kanadische, niederländische sowie das britische Parlament verabschiedeten jeweils Resolutionen, in denen das Vorgehen der chinesischen Führung als Völkermord dekla- riert wird.4 All diese Erklärungen haben allerdings gemein, dass die politischen Akteure sich nicht juristisch mit den Tatbestandsvoraussetzungen des Völkermordes auseinandersetzten. In anderen Staaten, wie etwa in Belgien oder in Australien finden aktuell noch Debatten darüber statt, ob der Vorwurf des Genozids erhoben werden kann.5 Auf die bereits erhobenen Vorwürfe 1 USA, Department of State, Determination of the Secretary of State on Atrocities in Xinjiang, abrufbar unter: Determination of the Secretary of State on Atrocities in Xinjiang - United States Department of State. Für ein- schlägige Presseberichte s. etwa: „US: China ´committed genocide against Uighurs`“, BBC vom 20. Januar 2021, abrufbar unter: https://www.bbc.com/news/world-us-canada-55723522; sowie Wong/Buckley, „U.S. Says Chi- na´s Repression of Uighurs is ´Genocide`, New York Times vom 22. Januar 2021, abrufbar unter: https://www.nytimes.com/2021/01/19/us/politics/trump-china-xinjiang.html; und Hudson, „At the 11th hour, Trump administration declares China´s treatment of Muslims in Xinjiang ´genocide`, The Washington Post vom 19. Januar 2021, abrufbar unter: https://www.washingtonpost.com/national-security/trump-china-genocide- uighur-muslims/2021/01/19/272a9df4-5a7f-11eb-aaad-93988621dd28_story.html. 2 Wörtlich: „That would be my judgment as well“, s. Anthony Blinken´s Senate confirmation hearing for Secre- tary of State, abrufbar unter: https://www.pbs.org/newshour/politics/watch-live-senate-committee-on-foreign- relations-holds-confirmation-hearing-for-antony-blinken, ab 1:57:58. 3 USA, Department of State, Bureau of Democracy, Human Rights and Labor, “2020 Country Reports on Human Rights Practices”, Preface von Secretary of State Antony Blinken, abrufbar unter: https://www.state.gov/reports/2020-country-reports-on-human-rights-practices/; sowie speziell im Länderber- icht zu China: China (Includes Hong Kong, Macau, and Tibet) - United States Department of State. Kritisch zur US-Einschätzung Sachs/Schabas, „The Xinjiang Genocide Allegations Are Unjustified“, Project Syndicate vom 20. April 2021, abrufbar unter: https://www.project-syndicate.org/commentary/biden-should-withdraw- unjustified-xinjiang-genocide-allegation-by-jeffrey-d-sachs-and-william-schabas-2021-04. 4 Vgl. dazu unten Teil III, 3.8.1. 5 Ernst, „Das Parlament der Niederlande wertet die Behandlung der Uiguren in China als Genozid,“, in: Neue Zürcher Zeitung vom 27. Februar 2021, abrufbar unter: https://www.nzz.ch/international/niederlande- bezichtigt-china-des-genozids-an-uiguren-ld.1603943; Inter-Parliamentary Alliance on China, “Belgian parlia- mentarians call for government to declare ´genocide` in Xinjiang”, 18. Februar 2021, abrufbar unter: https://ipac.global/belgian-parliamentarians-call-for-government-to-declare-genocide-in-xinjiang-reject-eu- china-cai-deal/. Wissenschaftliche Dienste Ausarbeitung Seite 6 WD 2 - 3000 - 027/21 reagierte die chinesische Regierung jedenfalls mit vehementem Protest und wies die Anschuldi- gungen zurück.6 Am 22. März 2021 verurteilte dann auch die Europäische Union (EU) das Vorgehen
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