The Venture of the Comoros Referral at the Preliminary Examination Stage
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Carsten Stahn (editors) Morten Bergsmo and Publication Series No. 32 (2018): Editors of this volume: Quality Control in Preliminary Examination: Volume 1 Morten Bergsmo is Director of the Cen- tre for International Law Research and Policy Morten Bergsmo and Carsten Stahn (editors) (CILRAP). This is the fi rst of two volumes entitled Quality Control in Preliminary Examination. They Carsten Stahn is Professor of International form part of a wider research project led by the Centre for International Law Re- Criminal Law and Global Justice at Leiden search and Policy (CILRAP) on how we ensure the highest quality and cost-effi ciency Law School, and Programme Director of the during the more fact-intensive phases of work on core international crimes. The Grotius Centre for International Legal Stud- 2013 volume Quality Control in Fact-Finding considers fact-fi nding outside the criminal ies in The Hague. justice system. An upcoming volume concerns quality control in criminal investiga- The Torkel Opsahl Academic EPublisher tions. The present volume deals with ‘preliminary examination’, the phase when crim- 1 Volume in Preliminary Examination: Quality Control (TOAEP) furthers the objective of excellence inal justice seeks to determine whether there is a reasonable basis to proceed to full in research, scholarship and education by pub- criminal investigation. The book does not specifi cally recommend that prosecutorial lishing worldwide in print and through the discretion in this phase should be further regulated, but that its exercise should be Internet. As a non-profi t publisher, it is fi rmly committed to open access publishing. more vigilantly assessed. It promotes an awareness and culture of quality control, including freedom and motivation to challenge the quality of work. TOAEP is named after late Professor Torkel Opsahl (1931–1993), a leading interna- Volumes 1 and 2 are organized in fi ve parts. The present volume covers ‘The Prac- tional and constitutional law expert in Europe tice of Preliminary Examination: Realities and Constraints’ and ‘Case Studies or Situa- in the period from the mid-1960s until his tion Analysis’, with chapters by the editors, Andrew T. Cayley, Runar Torgersen, Frank- untimely passing in 1993. He was one of the lin D. Rosenblatt, Abraham Joseph, Matthias Neuner, Matilde E. Gawronski, Amitis early pillars of the human rights systems of the Khojasteh, Marina Aksenova, Christian M. De Vos, Benson Chinedu Olugbuo, Iryna United Nations and the Council of Europe. Marchuk, Thomas Obel Hansen, Rachel Kerr, Sharon Weill, Nino Tsereteli and Ali Emrah Bozbayindir, in that order, and with forewords by LIU Daqun and Martin Sørby. ISBNs: 978-82-8348-106-8 (print) and 978-82-8348-107-5 (e-book). Quality Control in Preliminary Examination: Above: Painting of Professor Torkel Opsahl by Front cover: Pasquale Trento, with other ma- the Italian artist Roberto Caruso. Volume 1 sons, mounting a sculpture in Florence. Masons have a proud tradition of self-regulation and qual- Back cover: Section of the original lower-fl oor Morten Bergsmo and Carsten Stahn (editors) ity control in Florence. The guild of master stone- of the Basilica of Saints Cosmas and Damian in masons and wood-carvers – Arte dei Maestri di Rome which honours the memory of two broth- Pietra e Legname – was already listed in 1236 ers and physicians for the poor in Roman Syria. as one of the Intermediate Guilds. Ensuring rigor- Its mosaics and other stonework infl uenced the ous quality control through strict supervision of Florentine guild of masons referred to in the front- the workshops, the guild not only existed for more page caption, as its craftsmen and sponsors cre- than 500 years (until 1770, when several of its ated a culture of excellence through competition functions were assigned to the Florentine cham- and exacting quality control. ber of commerce), but it has contributed to the Torkel Opsahl Academic EPublisher outstanding quality of contemporary masonry in Photograph: © CILRAP 2018. E-mail: [email protected] Florence. URL: www.toaep.org Dust jacket designed by LIAO Wan-Ting. Photograph: © CILRAP 2017. PURL: http://www.legal-tools.org/doc/b07a98/ E-Offprint: Ali Emrah Bozbayındır, “The Venture of the Comoros Referral at the Preliminary Examination Stage”, in Morten Bergsmo and Carsten Stahn (editors), Quality Con- trol in Preliminary Examination: Volume 1, Torkel Opsahl Academic EPublisher, Brussels, 2018 (ISBNs: 978-82-8348-123-5 (print) and 978-82-8348-124-2 (e- book)). This publication was first published on 6 September 2018. TOAEP publica- tions may be openly accessed and downloaded through the web site www.toaep.org which uses Persistent URLs (PURLs) for all publications it makes available. These PURLs will not be changed and can thus be cited. Printed copies may be ordered through online distributors such as www.amazon.co.uk. This e-offprint is also available in the Legal Tools Database under PURL http://www.legal-tools.org/doc/b07a98/. It is noteworthy that the e-book versions of Quality Control in Preliminary Examination: Volumes 1 and 2 contain more than 1,000 hyperlinks to legal sources in the Database. This amounts to a thematic knowledge-base that is made freely available as an added service to readers. © Torkel Opsahl Academic EPublisher, 2018. All rights are reserved. Front cover: Pasquale Trento, with other masons, mounting a sculpture in Florence. Masons have a proud tradition of self-regulation and quality control in Florence. The guild of master stonemasons and wood-carvers – Arte dei Maestri di Pietra e Legname – was already listed in 1236 as one of the Intermediate Guilds. Ensuring rigorous quality control through strict su- pervision of the workshops, the guild not only existed for more than 500 years (until 1770, when several of its functions were assigned to the Florentine chamber of commerce), but it has contributed to the outstanding quality of contemporary masonry in Florence. Photograph: © CILRAP 2017. Back cover: Section of the original lower-floor of the Basilica of Saints Cosmas and Damian in Rome which honours the memory of two brothers and physicians for the poor in Roman Syria. Its mosaics and other stonework influenced the Florentine guild of masons referred to in the frontpage caption, as its craftsmen and sponsors created a culture of excellence through competition and exacting quality control. Photograph: © CILRAP 2018. PURL: http://www.legal-tools.org/doc/b07a98/ 17 ______ 17. The Venture of the Comoros Referral at the Preliminary Examination Stage Ali Emrah Bozbayındır 17.1. Introduction As of September 2017, the situation on Registered Vessels of the Union of the Comoros, the Hellenic Republic and the United Kingdom of Cambo- dia (hereinafter the ‘Gaza flotilla situation’) was still on the list of ongo- ing preliminary examinations of the Office of the Prosecutor (hereinafter the ‘OTP’). The Gaza flotilla situation goes back to a referral by the Un- ion of the Comoros, which was submitted to the International Criminal Court (‘ICC’) on 14 May 2013 “with respect to the 31 May 2010 Israeli raid on a humanitarian aid flotilla bound for the Gaza Strip”.1 The referral proved both legally and politically significant. The Comoros referral is the first referral of a State concerning the alleged crimes committed by anoth- er State that is also a non-State Party of the Rome Statute of the ICC.2 Moreover, the referral by Comoros has a symbolic significance – especial- Ali Emrah Bozbayındır is Assistant Professor of Criminal Law and Criminal Procedure at the Faculty of Law of Istanbul Sabahattin Zaim University. He holds an LL.B. degree from Selcuk University (Turkey), and LL.M. and Dr. jur. degrees from the Faculty of Law of the University of Cologne (Germany). He has been a visiting scholar at Institute of Criminology of the University of Cambridge and Max-Planck Institute for Comparative and International Criminal Law, Freiburg i. Br. Germany. He has published in Turkish, Ital- ian, English and German. His publications in English include Turkey and the International Criminal Court: A Substantive Criminal Law Analysis in the Context of the Principle of Complementarity, Nomos Verlag, Baden-Baden, 2013; The Advent of Preventive Criminal Law: An Erosion of the Traditional Criminal Law?, Criminal Law Forum, 2018, vol. 29, no. 1, pp. 25-62. 1 Union of the Comoros, “Referral of the Union of Comoros with respect to the 31 May 2010 Israeli raid on the Humanitarian Aid Flotilla bound for Gaza Strip”, 14 May 2013, ICC-01/13-1-Anx1 (http://www.legal-tools.org/doc/d5e455/). 2 See Antonio Marchesi and Eleni Chaitidou, “Article 14: Referral of a situation by a State Party”, in Otto Triffterer and Kai Ambos (eds.), Rome Statute of the International Criminal Court: A Commentary, 3rd edition, C.H. Beck, Hart, Nomos, Munich, 2016, margin no. 17; Rod Rastan, “Jurisdiction”, in Carsten Stahn (ed.), The Law and Practice of the Interna- tional Criminal Court, Oxford University Press, Oxford, 2015, pp. 141, 165. Publication Series No. 32 (2018) – page 555 PURL: http://www.legal-tools.org/doc/b07a98/ Quality Control in Preliminary Examination: Volume 1 ly if one considers the Court’s activities in its first decade – namely, it is a situation where an African State is referring a situation involving a non- African State to the ICC, and for this reason and others, such as due to the fact the situation in question involves a powerful Western State vis-à-vis a small African State, a commentator has dubbed the Comoros Referral as the “Nicaragua Moment for the ICC”.3 Following her receipt of the referral, the Prosecutor of the ICC has commenced a preliminary examination4 into the Gaza flotilla situation; and in her analysis dated 6 November 2014, she concluded that there was “a reasonable basis to believe that the killing of passengers of the Mavi Marmara amounted to the war crime of wilful killing pursuant to Article 8 (2) (a) (i) of the Statute”.