Memorial of the State of Qatar
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INTERNATIONAL COURT OF JUSTICE ______________________________________________________________________________ INTERPRETATION AND APPLICATION OF THE INTERNATIONAL CONVENTION ON THE ELIMINATION OF ALL FORMS OF RACIAL DISCRIMINATION (THE STATE OF QATAR v. THE UNITED ARAB EMIRATES) MEMORIAL OF THE STATE OF QATAR VOLUME I 25 APRIL 2019 TABLE OF CONTENTS CHAPTER I INTRODUCTION ............................................................................. 1 Section I. Overview of the Case .................................................................. 1 Section II. Structure of the Memorial ........................................................ 13 CHAPTER II THE FACTS UNDERLYING QATAR’S CLAIMS ..................... 17 Section I. The Context of the Dispute ....................................................... 18 Section II. The Imposition of the UAE’s Discriminatory Measures ......... 22 A. THE 5 JUNE DIRECTIVE AND COLLECTIVE EXPULSION OF QATARIS ...................................................................................... 22 B. THE TRAVEL BAN AND RESTRICTIONS ON MOVEMENT ................ 33 C. THE ATTACK ON FREEDOM OF EXPRESSION AND INCITEMENT OF ANTI-QATARI SENTIMENT .................................. 41 1. The Criminalization of “Sympathizing” with Qatar ...... 41 2. The Suppression of Qatari Media .................................. 45 3. The UAE’s Campaign of Misinformation and Anti- Qatari Hate Speech ....................................................... 48 Section III. The UAE’s Escalation of the Crisis and Qatar’s Response .... 59 Section IV. The International Condemnation of the Discriminatory Measures ............................................................................................ 67 CHAPTER III JURISDICTION ............................................................................ 75 Section I. The UAE’s Discrimination Against Qataris Falls Within the Scope Ratione Materiae of the CERD ............................................... 77 A. THE CERD’S PROTECTIVE SCOPE ENCOMPASSES ALL FORMS OF RACIAL DISCRIMINATION ........................................... 78 B. THE ACTS COMPLAINED OF BY QATAR FALL WITHIN THE CERD’S PROTECTIVE SCOPE ....................................................... 85 1. The UAE’s Measures Explicitly Targeting “Qatari Residents and Visitors” and “Qatari Nationals” Fall within CERD’s Scope Ratione Materiae Based on their Discriminatory Purpose ........................................ 88 i 2. The Discriminatory Measures Fall Within the CERD’s Scope Ratione Materiae Based on Their Discriminatory Effect on Qataris ................................ 126 Section II. The Dispute “Is Not Settled” for the Purposes of Article 22 . 141 A. ARTICLE 22 ESTABLISHES ALTERNATIVE, NOT CUMULATIVE, REQUIREMENTS .................................................. 142 1. Article 22’s Requirements Cannot Be Cumulative When Read in Light of the “Logic and Purpose” of CERD and in Context with its Other Provisions ........ 142 2. The Preparatory Works of CERD Confirm that Article 22’s Requirements are Alternative ................. 150 3. None of the UAE’s Reasons Why Article 22’s Requirements Should Be Read Cumulatively Has Merit ............................................................................ 155 B. THE NEGOTIATION REQUIREMENT HAS BEEN SATISFIED ........... 165 CHAPTER IV QATAR’S CLAIMS ARE ADMISSIBLE ................................. 183 SECTION I. THE LOCAL REMEDIES RULE DOES NOT BAR QATAR’S CLAIMS ............................................................................................. 184 A. THE LOCAL REMEDIES RULE DOES NOT APPLY TO QATAR’S CLAIMS ...................................................................................... 184 1. The Local Remedies Rule Does Not Apply in Circumstances of Widespread Harm or Generalized State Policies and Practices ......................................... 187 2. The Local Remedies Rule Does Not Apply in View of Qatar’s Claims of Direct Injury to Its Own Interests under the CERD ........................................... 192 B. THE UAE HAS FAILED TO PROVE THE EXISTENCE OF ANY EFFECTIVE AND REASONABLY AVAILABLE REMEDIES THAT HAVE NOT BEEN EXHAUSTED ................................................... 201 1. The “Hotline” Is Not a Legal Remedy ........................ 206 2. The UAE’s Courts Are Neither Effective nor Reasonably Available ................................................. 216 Section II. Qatar’s Recourse to the CERD Procedure Does Not Constitute a Bar to the Admissibility of Qatar’s Claims .................. 227 ii CHAPTER V THE UAE HAS VIOLATED THE CERD .................................. 235 Section I. The UAE Violated Article 2(1), Article 5(a) and Article 6 of the CERD by Collectively Expelling Qataris ................................... 236 A. THE CERD REQUIRES STATES PARTIES TO ENSURE THAT THEY DO NOT EXPEL NON-NATIONALS FROM THEIR TERRITORY ON A COLLECTIVE BASIS ........................................ 237 B. THE UAE COLLECTIVELY EXPELLED QATARIS FROM ITS TERRITORY IN VIOLATION OF ARTICLE 2(1) .............................. 245 1. The Purpose of the Expulsion Order and Absolute Travel Ban Was to Collectively Expel Qataris from the UAE ...................................................................... 246 2. The Expulsion Order and Absolute Travel Ban Had the Effect of Expelling Qataris on a Collective Basis 254 C. THE COLLECTIVE EXPULSION OF QATARIS ALSO VIOLATED ARTICLE 5(A) AND ARTICLE 6 OF THE CERD ............................ 265 Section II. The UAE’s Maintenance of the Absolute Travel Ban Violated and the Modified Travel Ban Continues to Violate Articles 2(1), 5(a), 5(d)(iv), 5(d)(v), 5(e)(i), 5(e)(v) and 6 of the CERD ............................................................................................... 268 A. THE ABSOLUTE TRAVEL BAN WAS NEITHER LEGITIMATE NOR PROPORTIONAL .................................................................. 269 B. THE MODIFIED TRAVEL BAN IS NEITHER LEGITIMATE NOR PROPORTIONAL .......................................................................... 272 C. THE UAE’S ABSOLUTE TRAVEL BAN VIOLATED AND ITS MAINTENANCE OF THE MODIFIED TRAVEL BAN CONTINUES TO VIOLATE ARTICLES 2(1), 5, AND 6 OF THE CERD ................ 289 1. Interference with the Right to Family Life .................. 292 2. Interference with the Right to Education and Training ....................................................................... 299 3. Interference with the Right to Property ....................... 307 4. Interference with the Right to Work ............................ 313 5. Interference with Right to Equal Treatment Before Tribunals ..................................................................... 314 Section III. The UAE’s Interference with Qataris’ Right to Freedom of Opinion and Expression Violates Articles 2(1), 5(d)(viii) and 6 of the CERD ......................................................................................... 317 iii Section IV. The UAE’s Propagation and Incitement of Discriminatory Anti-Qatari Propaganda and Ideas Violate Articles 2, 4, 6 and 7 of the CERD ......................................................................................... 322 A. THE UAE IS VIOLATING THE CERD THROUGH ITS ANTI- QATARI INCITEMENT CAMPAIGN ............................................... 323 B. THE UAE IS VIOLATING THE CERD BY FAILING TO TAKE EFFECTIVE MEASURES TO ERADICATE INCITEMENT TO RACIAL DISCRIMINATION .......................................................... 335 CHAPTER VI THE UAE’S ONGOING VIOLATION OF THE PROVISIONAL MEASURES ORDER ....................................................... 343 Section I. The Order’s Binding and Autonomous Legal Character ........ 344 Section II. The UAE’s Intransigent and Inadequate Response to the Order ................................................................................................ 346 CHAPTER VII REMEDIES ............................................................................... 353 Section I. The Applicable Principles ....................................................... 353 Section II. The Relief Sought .................................................................. 361 SUBMISSIONS ................................................................................................... 367 CERTIFICATION ............................................................................................... 371 LIST OF ANNEXES ........................................................................................... 373 iv GLOSSARY OF ACRONYMS, ABBREVIATIONS AND DEFINED TERMS African Charter on Human and ACHPR Peoples’ Rights American Convention on Human ACHR Rights AFC Asian Football Confederation Convention against Torture and Other CAT Cruel, Inhuman or Degrading Treatment or Punishment CCC Compensation Claims Committee International Convention on the CERD Elimination of All Forms of Racial Discrimination CRC Convention on the Rights of the Child International Law Commission Draft Draft Articles on Expulsion Articles on the Expulsion of Aliens ECHR European Convention on Human Rights ECtHR European Court of Human Rights GCC Gulf Cooperation Council v Member States of the GCC: Bahrain, GCC States Kuwait, Oman, Qatar, Saudi Arabia and the UAE IACtHR Inter-American Court of Human Rights International Covenant on Civil and ICCPR Political Rights International Law Commission Draft ILC Articles Articles on Responsibility of States for Internationally Wrongful Acts NAPS National ATM and POS Switch system Qatar