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The Crime of Genocide's Evolution and the Meaning of the Milosevic Trial

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The Crime of Genocide's Evolution and the Meaning of the Milosevic Trial St. John's Law Review Volume 76 Number 2 Volume 76, Spring 2002, Number 2 Article 2 February 2012 Can Sovereigns Be Brought to Justice? The Crime of Genocide's Evolution and the Meaning of the Milosevic Trial Michael J. Kelly Follow this and additional works at: https://scholarship.law.stjohns.edu/lawreview Recommended Citation Kelly, Michael J. (2002) "Can Sovereigns Be Brought to Justice? The Crime of Genocide's Evolution and the Meaning of the Milosevic Trial," St. John's Law Review: Vol. 76 : No. 2 , Article 2. Available at: https://scholarship.law.stjohns.edu/lawreview/vol76/iss2/2 This Article is brought to you for free and open access by the Journals at St. John's Law Scholarship Repository. It has been accepted for inclusion in St. John's Law Review by an authorized editor of St. John's Law Scholarship Repository. For more information, please contact [email protected]. ARTICLES CAN SOVEREIGNS BE BROUGHT TO JUSTICE? THE CRIME OF GENOCIDE'S EVOLUTION AND THE MEANING OF THE MILOSEVIC TRIAL MICHAEL J. KELLYt INTRODU CTION ............................................................................ 260 I. H ISTORICAL CONTEXT ............................................................ 260 II. CONCEPTUAL EVOLUTION OF GENOCIDE AS AN INTERNATIONALLY RECOGNIZED CRIME ........................... 264 A. GENOCIDE AND THE PERIOD OF WORLD WARS (1915- 1945) ....................................................................... 266 B. GENOCIDE CONVENTION DEFINES THE CRIME (1948) ....... 281 C. GENOCIDE AND INACTION DURING THE COLD WAR (1950- 1990) ....................................................................... 288 D. GENOCIDE AND REACTION AFTER THE COLD WAR (1990-2000) ....................................................................... 299 1. Political/Military Responses ......................................... 300 2. Institutional Responses: International War Crime Tribu n al ...................................................................... 311 III. ESTABLISHMENT OF AN INTERNATIONAL CRIMINAL C OU R T .............................................................................. 3 16 A. GENOCIDE INCLUDED AS A CRIME ..................................... 316 B. PROSPECTS FOR ENFORCEMENT ........................................ 319 t Assistant Professor of Law, Creighton University School of Law; B.A. and J.D., Indiana University; L.L.M. International & Comparative Law, Georgetown University. This Article, encouraging the development of a perpetual judicial body to prosecute and punish the crime of genocide, is dedicated to the millions of victims of genocide who needlessly perished during the twentieth century. They were more than numbers. They were individuals with names, families, and histories. They are remembered. They are grieved. 258 ST. JOHN'S LAW REVIEW [Vol.76:257 IV. THE EROSION OF SOVEREIGN IMMUNITY AND THE SIGNIFICANCE OF THE MILOSEVIC PROSECUTION ............. 322 V . C ONCLUSION ........................................................................ 329 APPENDIX I CONVENTION ON THE PREVENTION AND PUNISHMENT OF THE CRIME OF GENOCIDE ............................. 333 APPENDIX II INTERNATIONAL CRIMINAL TRIBUNAL FOR THE FORMER YUGOSLAVIA .............................................................. 338 2002] THE CRIME OF GENOCIDE Hatred may be dormant, but never static. It unavoidably turns into a cancerous cell that invades a limb, then another, then the entire body, then the environment. Its aim is to conquer in order to destroy. Its principle target is human dignity and freedom. An ancient, if not eternal, plague routed in somber and fathomless ground, hate ignores frontiers and walls, ethnic and social differences, racial origins and religious beliefs. A human disease, it cannot be stopped even by God himself. Man alone can prevent it for man alone can produce it. Man alone can limit its progression. Hence, no group may consider itself immune against its poison. No community is shielded from its arrows. Blind and blinding, hatred is a dark sun which, under heavens laden with ashes, fights and maims and humiliates anyone who forgets that all human beings, irrespective of their origin, color or faith, are sovereign, and thus are bearers of promise and worthy of respect. ...[T]o learn what evil hatred can do, listen to what evil hatred has already done not so long ago. Just close your eyes and try to imagine endless nocturnal processions converging to a place over there in Poland, where, as a result of government- planned hatred, heaven and the human heart were on fire. Close your eyes and listen, listen to the frightened victims of manhunts in the ghettos, the silent screams of terrified mothers, listen to the tears of starving children and their desperate parents, friends, teachers in agony, as they walk to where dark flames are so gigantic that the planet itself seemed in danger. Think of them today.... remember them tomorrow. Think of their legacy. Just as the hatred must disappear, the legacy of its victims must remain.' -Elie Wiesel, Nobel Peace Laureate, Survivor of Auschwitz and Buchenwald 1 The Legacies of the Holocaust: Hearing Before the Senate Committee on Foreign Relations, 106th Cong. 4-6 (2000) (statement of Elie Wiesel, Professor, Boston University). ST. JOHN'S LAW REVIEW [Vol.76:257 INTRODUCTION This is a story of crime and punishment. Specifically, it concerns the development of a crime, its definition and codification, and the slow movement toward punishing it. While genocide has only recently exposed sovereigns to criminal sanctions on the international scene, many believe it to be the crime of crimes.2 If this is true, then the world has long been negligent in pursuing its perpetrators, many of whom reasonably thought they could hide behind the age-old shield of sovereign immunity. Now that calculus is changing. The conviction of Rwanda's Prime Minister and the arrest and prosecution of Yugoslavia's President on charges of genocide represent a watershed moment in the development of international law. The political will has finally been summoned to pursue those in power who monstrously direct forces under them to commit genocidal atrocities. Now it can be legally asserted that blood on the hands of lieutenants travels back up the chain of command to their masters and stains them most assuredly as if the masters had committed the physical acts themselves. I. HISTORICAL CONTEXT For most, mere utterance of the word "genocide" chills the conscience. Naturally, the question follows: Whence does this terrible concept spring? While the term itself is only a half- century old, its origins are as ancient as its results are horrifying.3 Planned mass human annihilation has been with us from the beginning, or at least the beginning, according to the commonly accepted Judeo-Christian-Islamic tradition. The first book of the Old Testament recounts the first genocide-that of God against His people, or the entire "race" of man. 4 In many 2 See WILLIAM A. SCHABAS, GENOCIDE IN INTERNATIONAL LAW 385 (2000). 3 See LEO KUPER, GENOCIDE: IT'S POLITICAL USE IN THE TWENTIETH CENTURY 11 (1981). 4 See Genesis 6:5-7 (King James) ("God saw that the wickedness of man was great in the earth and that every imagination of the thoughts of his heart was only evil continually ....And the Lord said, I will destroy man whom I have created from the face of the earth."); Genesis 6:17 (King James) ("[Blehold I, even I, do bring flood of waters upon earth, to destroy all flesh, wherein is the breath of life, from under heaven; and every thing that is in the earth shall die."); Genesis 7:10-12 (King James) ("And it came to pass after seven days, that the waters of the flood were upon the earth .... [Tihe windows of heaven were opened ....And the rain 20021 THE CRIME OF GENOCIDE ways Genesis is regarded as the book of creation and, therefore, a book of beginnings. Yet, it is also a book of endings, for God, disappointed in His creation, wiped the earth clean of every land-dwelling organism except Noah, his family, and the animals that were directed onto the Ark.5 Thereafter, the Bible recounts further genocides committed by man against his fellow man 6 under God's direction. God's justice by its divine nature is philosophically and theologically considered just and, consequently, not open to challenge by humanity. Thus, genocidal acts, whether visited upon humanity by God or pursuant to divine direction, are beyond human comprehension, judgment, reproach, and to a large extent, questioning. Genocide perpetrated by man against man, however, under god-like delusions but without any divine was upon the earth for forty days and nights."). The Old Testament then recounts the effect of the flood: [T]he waters prevailed and were increased greatly upon the earth... and all the high hills, that were under the whole heaven, were covered .... [A]nd the mountains were covered. [All flesh died that moved upon the earth, both of fowl, and of cattle, and of beast, and of every creeping thing that creepeth upon the earth, and every man: all in whose nostrils was the breath of life, of all that was in the dry land, died .... [Elvery living substance was destroyed which was upon the face of the ground .... [Tihe waters prevailed upon the earth a hundred and fifty days. Genesis 7:18-24 (King James). 5 See Genesis 6:5-22 (King James). 6 See Joshua 10:40 (King James) ("So Joshua smote all the country of the hills, of the south, and of the vale, and of the springs, and all their kings: he left none remaining but utterly destroyed all that breathed,
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