The International Criminal Court: Starting with Africa?
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Péter Pázmány Catholic University Budapest, 2008 The International Criminal Court: Starting with Africa? Alina Ioana Apreotesei PhD Dissertation Supervisor: Prof. Dr. Kovács Péter CONTENTS List of Abbreviations 5 Introduction 7 Chapter I: The International Criminal Court – from a Dream to Reality 12 I. 1. The Beginning 12 I. 2. Interbellum. The Role of Vespasian Pella 14 I. 3. After the Second World War. The Military Tribunals 18 I. 4. New attempts in establishing an international criminal court 21 I. 5. The end of the Cold War. The Ad Hoc Tribunals 23 I. 6. Preparing the Rome Conference 26 I. 7. The International Criminal Court 27 I. 8. Towards ending impunity 30 Chapter II: Elements of novelty and problematical issues in the Rome Statute 31 II. 1. The Principle of Complementarity and the International Criminal Court 31 II.1. 1. Principle of complementarity – a new principle of law 31 II.1. 2. Concurrency v. complementarity 33 II.1. 3. Complementarity in the Rome Statute 37 II.1. 4. Problematical issues on complementarity 41 II.1. 4. a) Referral by a state-party 41 II.1. 4. b) Referral by the United Nations Security Council 43 II.1. 4. c) Prosecutor’s proprio motu referral and the conditions of admissibility 44 1 II.1. 5. Precedents of (un)willingness or (in)ability to prosecute in international law 50 II.1. 5. a) The Nuremberg Trials 51 II.1. 5. b) The trial of Adolph Eichmann 52 II.1. 5. c) The trial of Klaus Barbie, Butcher of Lyons 53 II.1. 5. d) The Pinochet Trial 55 II.1. 5. e) Transitional justice in the former communist countries 57 II.1. 5. f) Russia’s amnesty over the war criminals in Chechnya 60 II.1. 5. g) Milosevic’s trial 61 II.1. 5. h) Karadzic’s trial 63 II.1. 5. i) Saddam Hussein’s trial 63 II. 2. The United States, Romania and the International Criminal Court 67 II.2. 1. The United States’ policy towards the International Criminal Court: from support to opposition 67 II.2. 2. The United States’ strategy against ICC 71 II.2. 2. a) “Article 16” Security Council Resolutions 72 II.2. 2. b) “Article 98” Agreements 74 II.2. 2. c) US legislation prohibiting foreign aid 78 II.2. 3. The European Union’s responses. Romania between EU and US? 79 II. 3. Aggression as an Individual Crime. The Jurisdiction of the International Criminal Court 84 II.3. 1. From The Hague to Rome; 99 years of legal work trying to define aggression (1899-1998) 84 II.3. 2. From Rome to The Hague; Special Working Group on the Crime of Aggression (1998-2007) 92 II.3. 2. a) Proposals submitted by states 94 2 II.3. 2. b) The Coordinator’s Paper 98 II.3. 2. c) Future work of the SWGCA 104 II.3. 3. Aggression as an individual crime. Solutions. 105 II.3. 3. a) Definition of the crime of aggression. 105 II.3. 3. b) Conditions under which the ICC can exercise jurisdiction over the crime of aggression 108 II.3. 3. c) Elements of the crime of aggression 116 II. 4. The Victim and the Witness within ICTY and ICC. A Comparative Perspective 118 II.4. 1. Victims v. Witnesses. Definitions 118 II.4. 2. The protective regime 120 II.4. 3. Participation in proceedings 127 II.4. 4. Reparation for victims 131 II.4. 5. Who is responsible towards the victims? 135 Chapter III: The International Criminal Court – an African Criminal Court? 139 III. 1. Democratic Republic of the Congo – Situations and Cases 139 III.1. 1. Introduction 139 III.1. 2. Political background 140 III.1. 3.The situation in the DRC. Accountability at national level 147 III.1. 4. Cases before the ICC 151 III.1. 4. a) Prosecutor v. Thomas Lubanga Dyilo 152 III.1. 4. b) Confirmation of charges 155 III.1. 4. c) Prosecutor v. Germain Katanga 166 III.1. 4. d) Prosecutor v. Mathieu Ngudjolo Chui 168 III.1. 4. e) Prosecutor v. Bosco Ntaganda 170 3 III. 2. The Situation in Darfur, the Sudan 172 III.2. 1. The Conflict in Darfur 172 III.2. 2. International responses 174 III.2. 3. The Commission of Inquiry’s findings 176 III.2. 4. Legal responses 180 III. 3. The Situation in Central African Republic 191 III.3. 1. The conflict 191 III.3. 2. The ICC referral 193 III.3. 3. Crimes within the focus of the ICC 195 III. 4. The Situation in Uganda 202 III.4. 1. The conflict and the Lord’s Resistance Army 202 III.4. 2. The International Criminal Court steps in 205 III.4. 3. Peace v. Justice? 207 III.4. 4. Possible solutions 211 Conclusions 217 Bibliography 226 4 List of Abbreviations AI – Amnesty International AMIS – African Union Mission in the Sudan ASPA – American Service-members’ Protection Act AU – African Union BONUCA – United Nations Peace-building Support Office CAR – Central African Republic CNDP - Congrès national pour la défense du people DRC – Democratic Republic of the Congo ECHR – European Court of Human Rights ECOSOC – Economic and Social Council EU – European Union FIDH - Fédération Internationale des Droits de l'Homme FNI - Front des Nationalistes et intégrationnistes (National Integrationist Front) FPLC - Forces patriotiques pour la libération du Congo FRPI - Force de résistance patriotique en Ituri (Patriotic Resistance Force in Ituri) GA – General Assembly HSM - Holy Spirit Mobile ICC – International Criminal Court ICJ – International Court of Justice ICTR – International Criminal Tribunal for Rwanda ICTY – International Criminal Tribunal for the Former Yugoslavia ILC – International Law Commission ILO – International Labour Organization ISAF – International Security Assistance Force JEM - Justice and Equality Movement LRA – Lord Resistance Army MINURCA - United Nations Mission to Central African Republic MINURCAT - United Nations Mission in the Central African Republic and Chad 5 MISAB - Inter-African Mission to Monitor the Implementation of the Bangui Agreements MONUC - Mission de l’Organisation des Nations Unies au Congo, United Nations Organization Mission in the DRC NATO – North Atlantic Treaty Organization NRA - National Resistance Army ODESSA - Organisation der ehemaligen SS-Angehörigen (Organization of Former Members of the SS) OPCV - Office of Public Counsel for Victims OTP – The Office of the Prosecutor of the International Criminal Court PCIJ – Permanent Court of International Justice PrepCom – Preparatory Committee SC – Security Council SCSL – Special Court for Sierra Leone SLM/A - Sudan Liberation Movement/Army SOFA – Status of Forces Agreement SWGCA – Special Working Group on the Crime of Aggression TRC - Truth and Reconciliation Commissions UN – United Nations UNAMID – United nations–African Union Mission in Darfur UNHCR - United Nations High Commission for Refugees UNLA - Ugandan National Liberation Army UNWCC – United Nations War Crimes Commission UNICEF – United Nations Children’s Fund UPC - Union of Congolese Patriots UPDA - Uganda People’s Defence Army 6 Introduction After more decades of “travaux préparatoires”, the International Criminal Court is a reality. It is not just a Court, but a system that international criminal justice has created, a system of interaction between states, civil society and international organizations.1 The crimes under international law already existed but a new system was needed to apply to them. The process that started at Nuremberg continues to evolve.2 Nuremberg was the first multinational criminal tribunal, while the ICTY and ICTR were the first ad hoc international criminal courts.3 But the development of international criminal law (ICL), which “results from a myriad of small or great tragedies”4, showed that a permanent international criminal court was strongly needed. The international law is in a continuous diversification.5 Human Rights Law, International Humanitarian Law, and International Criminal Law, are all branches of Public International Law. They all converge in protecting the individuals and it is ICC that brings them together. The International Criminal Court is a public international law tool to apply international criminal law in cases of human rights violations in time of both war and peace. As it was said, “without the International Military Tribunal of Nuremberg, there would be no International Criminal Court.”6 The demand for international criminal justice started at Nuremberg, but it “blew up, as it were, in the 1990s”7. If 1 As stressed by Mrs. Fatou Bensouda, Deputy Prosecutor of the International Criminal Court, with the occasion of the conference “Fighting Impunity in a Fragmented World – New Challenges for the International Criminal Court”, European University Institute, Florence, 23-24 May 2008. 2 See William A. Schabas, International sentencing: From Leipzig (1923) to Arusha (1998) or M. Cherif Bassiouni, The Nuremberg Legacy, in M. Cherif Bassiouni (Ed.), “International Criminal Law”, 2nd Ed., Vol. III, Enforcement, Transnational Publishers Inc., Ardsley, New York, 1999. 3 See T. Meron, “War Crimes Law Comes of Age. Essays”, Oxford University Press, 1998 at 198- 199. 4 Antonio Cassese, “International Criminal Law”, Oxford University Press, 2003, preface. 5 See Géza Herczegh, L’avenir de l’enseignement du droit international, in Kovács Péter (Ed.), « Le droit international au tournant du millénaire – l’approche hongroise », Osiris, Budapest, 2000. 6 Hans-Peter Kaul, Judge of the International Criminal Court and president of the Pre-Trial Division, The International Criminal Court: Current Challenges and Perspectives, in Washington University Global Studies Law Review, Vol. 6, 2007 at 580. 7 A. Cassese, “International Law”, 2nd Ed., Oxford University Press, 2005 at 453. 7 until then the very existence of international criminal law8 was questionable, once the ICTY and ICTR were established, the ICL has become a rapidly developing part of the international law9 and as the ICC is a reality, “we are now heading for the formation of a fully fledged body of law.”10 ICC comes to apply this new, rudimentary, and hybrid branch of law11, emerged from domestic criminal law, international law 12 and human rights law13, that form a complementary whole14 and whose common root lies in international humanitarian law.15 This newly born field of law, and therefore ICC, responds to massive human rights violations by punishing the perpetrators of “the most serious crimes of concern to the international community as a whole”.16 Even if it is still in its “infancy”17, the international criminal law is developing very quickly.