Advisory Opinions of the International Court of Justice on Questions Raised by Other International Tribunals
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Advisory Opinions of the International Court of Justice on Questions Raised by Other International Tribunals Ttillio Treves I. President SchwebePs Proposal of 26 October 1999 In his address to the United Nations General Assembly on 26 October 19991, Stephen Schwebel considered the much discussed subject of the "proliferation" of international courts and tribunals, concentrating on its consequences for the ICJ. President Schwebel maintained the bal- anced attitude taken in his address to the General Assembly in 19982 1 Available on the Court's website http://www.icj-cij.org This was Judge SchwebePs last address to the General Assembly as Presi- dent of the ICJ. 2 Available on the Court's website. In that speech President Schwebel had stated, in particular: "It is inevitable that other international tribunals will apply the law whose content has been influenced by the Court, and that the Court will apply the law as may be influenced by other international tribu- nals. At the same time, it is possible that various courts may arrive at differ- ent interpretations of the law. Proliferation risks conflict. But the risk should not be exaggerated. While in principle there is a single system of international law, in practice there are various views on issues of the law, and not only between international tribunals and among other authorita- tive interpreters of the law. There are differences within the International Court of Justice itself. This is marked not only by separate and dissenting opinions, but in adjustments of the holdings of the Court over the years. In practice international courts may be expected to demonstrate due respect 215 J.A. Frowein and R. Wolfrum (eds.), Max Planck Yearbook of United Nations Law, 215-231. © 2000 Kluwer Law International. Printed in the Netherlands. 216 Max Planck UNYB 4 (2000) stating, in particular, that: "A greater range of international legal fora is likely to mean that more disputes are submitted to international judicial settlement. The more international adjudication there is, the more there is likely to be; the "judicial habit" may stimulate healthy imitation". However, in President's Schwebel view , "in order to minimize such possibility as may occur of significant conflicting interpretations of in- ternational law, there might be virtue in enabling other international tribunals to request advisory opinions of the International Court of Justice on issues of international law that arise in cases before those tri- bunals that are of importance for the unity of international law". As regards the legal feasibility of this idea, President Schwebel states: "In respect of international tribunals that are organs of the United Nations, i.e. the international tribunals for the prosecution of war crimes in the former Yugoslavia and Rwanda, no jurisdictional problem in their requesting the Security Council to request advisory opinions on their behalf appears, should they wish to do so. The Secu- rity Council is authorized by the Charter to request the Court to give an advisory opinion "on any legal question"; and nothing in the Stat- utes of the war crimes tribunals debars them from asking the Security Council to exercise that authority on their behalf. Nor do the Admin- istrative Tribunals of the United Nations system lack the competence to request the General Assembly or comparable organs of the Specialized Agencies to request opinions on their behalf. There is room for the ar- gument that even international tribunals that are not United Nations organs, such as the International Tribunal for the Law of the Sea, or the International Criminal Court when established, might, if they so de- cide, request the General Assembly — perhaps through the medium of a special committee established for the purpose — to request advisory opinions of the Court." The proposal set out in the speech by President Schwebel, who had already discussed the topic in a learned paper of 19883, has a history be- for the opinions of other international courts. The International Court of Justice looks forward to working harmoniously with other international tribunals. But the fabric of international law is, it is believed, resilient enough to sustain such occasional differences as may arise". S. Schwebel, "Preliminary Rulings by the International Court of Justice at the Instance of National Courts", Va. J. Int'l L. 28 (1988), 495 et seq., re- printed in: id., Justice in International Law, 1994, 84. On this essay, see S. Rosenne, "Preliminary Rulings by the International Court of Justice at the Instance of National Courts: a Reply", Va. J. Int'l L. 29 (1989), 401 et seq. Treves, Advisory Opinions of the ICJ on Questions Raised 217 hind it. What is new is the combination of the considerations support- ing its legal feasibility with the context of the so-called "proliferation" of international courts and tribunals. II. An Old Idea in a New Context The basic idea that a role could and should be entrusted to the Hague Court in order to safeguard the unity of international law, which diver- gent pronouncements of the variety of courts applying it may jeopard- ize, is not new. Already in 1905 Dionisio Anzilotti envisaged that do- mestic courts could suspend proceedings in order to submit incidental questions of international law to an international tribunal4 for a ruling. Hersch Lauterpacht put forward a similar idea in 1929 as regards the PCIJ5 and C. Wilfred Jenks came back to it in 19646. Both authors pro- posed that domestic courts, when encountering certain questions of in- ternational law, could submit them to the Hague Court. According to Lauterpacht this could be done through "a formal application emanat- ing from the highest judicial authorities of the country and addressed to the Permanent Court". According to Jenks, who was concerned to en- sure that the result could be obtained without amending the Statute of the Court, domestic courts could submit a question of international law to the Hague Court for an advisory opinion through a special commit- tee to be set up by the General Assembly for the purpose. The model he had in mind were the advisory opinions requested in the proceedings D. Anzilotti, // diritto internazionale nei giudizi intemi, 1905, 139 note 1, reprinted in: Anzilotti, Scritti di diritto internazionale pubblico, Vol. I, 1956, 281 et seq., (436, note 41). H. Lauterpacht, "Decisions of Municipal Courts as a Source of Interna- tional Law", BYIL 10 (1929), 65 et seq., (94-95). Lauterpacht mentions the opinion of Anzilotti and a paper by W.R. Bisschop, "Immunity of State in Maritime Law", BYIL 3 (1922-23), 159 et seq., (166), (which was followed by another study of the same author "International Interpretation of Na- tional Case Law", BYIL 4 (1923-24), 131-137) which discusses a similar proposal made by Bisschop at a meeting of the Comite Maritime Interna- tional held in London in 1922 on the question of immunity of State-owned ships. W.C. Jenks, The Prospects of International Adjudication, 1964,160-161. 218 Max Planck UNYB 4 (2000) for review of decisions of the Administrative Tribunals of the United Nations and of the ILO7. The idea was further discussed in the seventies and early eighties, especially in the context of the United Nations and in the United States8. The House of Representatives supported it, in a form similar to that put forward by Jenks, in a resolution of 1982 urging the President to "explore the appropriateness" of the proposal9. As put forward by Hersch Lauterpacht and also, it would seem, by C. Wilfred Jenks, these proposals were motivated by the need to ensure the guidance of the World Court in light of the developing, and not al- ways entirely satisfactory, case law of domestic courts on matters of international law. Concern for possible dangers for the unity of inter- national law arising from decisions of international arbitral tribunals, or other international tribunals, such as the "mixed arbitral tribunals" or, more recently the European Court of Human Rights, were not at the forefront. As late as in 1988, the need to overcome the variable "knowl- edgeability of national courts about international law" and the possibil- ity that in the judgements of these courts "national and parochial per- spectives may come into play" were the main reasons put forward by Judge Schwebel to advocate the idea of preliminary rulings of the Hague Court on questions of international law10. 7 As regards the United Nations Administrative Tribunal, this possibility of requesting an advisory opinion of the International Court (introduced in 1955) has been abolished by A/Res/50/54 of 11 December 1995, see further S. Rosenne, The Law and Practice of the International Court, 1920—1996, 1997,1028-1038. 8 H. Golsong, "Role and Functioning of the International Court of Justice", ZaoRV 31 (1971), 673 et seq., with a summary of the proposals made in the context of the United Nations; L. Gross, "The International Court of Jus- tice: Consideration of Requirements for Enhancing its Role in the Interna- tional Legal Order", AJIL 65 (1971), 253 et seq., (308-313); P. Szasz, "En- hancing the Advisory Competence of the World Court", in: L. Gross (ed.), The Future of the International Court of Justice, II, 1976, 499 et seq., (524- 531); L. Caflisch, "Reference Procedures and the International Court of Justice", in: id., 372 et seq.; L.B. Sohn, "Broadening the Advisory Jurisdic- tion of the International Court of Justice", AJIL 77 (1983), 124-129. 9 H.R. Con. Res. 86, as revised, of 17 December 1982, quoted in Sohn, see above, 129, note 23. 10 Schwebel, "Preliminary Rulings ...", see note 3, 499-500; in: Schwebel, Justice ..., see note 3, 87. Treves, Advisory Opinions of the ICJ on Questions Raised 219 The revival of the discussion during the seventies was probably en- couraged by the success of the system of prejudicial questions which domestic courts of the Member States of the European Community may, or must, as the case may be, submit to the Court of Justice of the European Communities for a ruling on the interpretation of Commu- nity Treaties and subordinate legislation11.