The Role of International Standards in Australian Courts
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f 704 The Role of International Standards II in Australian Courts· i Han Justice Michael Kirby AC CMG- ,"-Ie'N perspectives ;~ )1 Over the past decade, r have had the privilege of working in a nwnber of the :' 3<'enciesagencies of the United Nations. Necessarily. this work has given me a p~rspecIive paspecIive of the weaknesses and inefficiencies of the United Nations. But it 1>1' has also made clear to me its utility in furthering the grand objectives conc~ivedconceived during the Second World War and carried into effect by the UN Charter in 1945. Working for the United Nations has influenced my approach to the role of internationalintemational law both generally and in relation to Australian law. It has sharpened my perception both of the potential of international law to assist j the development of Australian law and of the difficulty wnichwhich that potentialpotenrial I~;;'1 1'.···J~i presents for both legal theory and practical implementation. I" In ways which I have described elsewhere, my eyes were opened to the ['\1, . methods by which internationalintemational human rightS treaties could be utilised in the r< daily work of the courts by my participation in a conference in Bangaiore. India.rndia. seven years ago. 1 The purpose of this paper is; to[0 describe the pi Bangalore Principles; to illustrate their growing acceptance in Australian ' courtsccurts and in other countries of the common law; and to demonstrate the I,~ many practical instances in which international human rights law can be of assistance in understanding and developing Australian common and stamte law. IiI.t i 11 L Adapted. in ;:m;:m;t..... " frGm :l paper presented by t..1ew1c :luthot:luthor to th~ N~w Zealand I Judges' Conference. March 1995. "The Impact of International Human Rights :--.lorrns-Law~orrns-Law Urjd~rgoing Evolution".Evolution", President of the NSW Court of Appeal and Chainnan of the Executive i,1 Committee of the International Commission of Jurists. I.'J :-ADMD Kirby,Kirby. "The Austraiian Use of International Human Rights Nonns:Norms: From I" Bangalore to Balliol-A View from the Antipodes" (1993) 16 University of I' N~w Sourh Wales Law JoumoJ.363.JoumaJ.363. I' i:i1 ~ , ;1 II] ! r "~ ! 7%7% 22 Treaty-,\.{aldngTreaty",\.{aking andandAustralia Australia TheThe BangaloreBangalore PrinciplesPrinciples TheThe traditionaltraditional viewview ofof mostmost commoncommon lawlaw countriescountries hashas beenbeen thatthat intemationallawintemationallaw isis notnot partpart ofofdomestic domestic law.law. BlackstoneBlackstone inin hishis Commentaries,Commentaries, suggestedsuggested that:that: TheThe lawlaw ofofnations nations (whenever(whenever anyany questionquestion arisesarises whichwhich isis properlyproperly thethe objectobject ofof itsits jurisdiction)jurisdiction) isis herehere [in[in England]England] adoptedadopted inin itsits fullfull extentextent byby thethe commoncommon law.law. andand isis heldheld toto bebe partpart ofofthe the lawlaw ofofthe the landJand22 SaveSave forfor thethe UnitedUnited States,States, wherewhere BlackstoneBlackstone hadhad aa profoundprofound influence.influence. thisthis viewview camecame toto bebe regarded,regarded, virtuallyvirtually universally,universally, asas beingbeing "without"without foundation"}foundation"} InIn Australia,Australia, MasonMason JJ explainedexplained thethe .traditional.traditional positionposition inin 19821982 inin thesethese terms:terms: ItIt isis aa well settledsettled principleprinciple ofof thethe commoncommon lawlaw thatthat aa treatytreaty notnot tennioatingtennioating aa statesute ofof war hashas nono legallegal effecteffect uponupon thethe rightsrights andand dutiesduties ofof AustralianAustralian citizenscitizens andand isis notnot incorporatedincorporated intointo Australian lawlaw 0000 itsits ratificationratification byby Australia... ... ToTo achieveachieve thisthis resultresult thethe provisionsprovisions havehave toto bebe enactedenacted asas partpart ofof ourour domesticdomestic law,law, whether byby aa Commonwealth oror StateState statute,statute, SectionSection 51(x:dx)51(xxix) [the[the externalexternal affairsaffairs power]power] armsarms thethe CommonweaJthCommonwealth ParliamentParliament."to...to legislatelegislate soso asas toto incorporateincorporate intointo ourour lawlaw thethe provisionsprovisions ofof [international[international conventions]:~conventions]:~ More recently,recently, however,however, aa newnew recognitionrecognition hashas comecome aboutabout ofofthe the useuse thatthat may be made by judgesjudges of internationalmternational humanhuman rightsrights principles andand theirtheir exposition by thethe courts, tribunalstribunals and other bodies established toto givegive themthem content and effect. This reflectsreflects both thethe growing body of internationalinternational humanhuman rightsrights lawlaw and thethe instruments,instruments. both regionalregional and international,imernational, which givegive effect toto thatthat law.law. ItIt furthennorefurthennore recognisesrecognises thethe importanceimportance ofafthethe contentcontent ofof thosethose laws.laws, An expression thatthat seems toto encapsulate thethe modern approachapproach was given inin February 1988 inin Bangalore, IndiaIndia inin thethe so-called Banga/ore Principles.Principles, The BangaloreBangaiore PrincipJes5 state, inin effect, that:that: (I)(1) International law,law, whether human rights nonns or otherwise, isis not, as such, part of domestic law in most common law countries; (2) Such law does not become partparr of domestic law until Parliament so enacts or the judges, as another source of law~making,law-making, declare thethe norms thereby established to be part of domestic law; 2 Quoted in Chow Hung Ching v The King (1948) 77 CLR 449 at 477. J3 Note 2 above,above. at 477. 4 Koowarta v Bjelke-PetersenBjelke.Petersen and Drs (1982) 153 CLR 168 at 224f.224f, See comment [1994] NZLJ 433.at 434. See Kirby, n 1 above.above, at 373f • A '. .......... " " 7fJG7'1G Role a/International Standards inin Aust1'alianAustl"alian Courrs 33 (3)(3) The jUdge~judges will not do .50so auto.matic~lIy.automatically, simply because the.the nonnnonn isis Pa:tpart ofintematlOnallawofintemationallaw or ISis mentioned min a treaty,treaty, even one ratifiedratified byby theirtheir own count:ry;country; (4)(4) But ifif an issueissue of uncertainty arises, as by a lacunalacuna inin thethe commoncommon law,law, obscurityobscuriry inin itsits meaning or ambiguity inin a relevantrelevant starute. aa judgejudge may seek guidance inin thethe general principles of internationalinternational law,law, asas acceptedaccepted by thethe community ofnations; and (5)(5) From thisthis source material.material, thethe judgejudge may ascertain and declare what thethe relevantrelevant rulerule of domestic lawlaw is.is. ItIt isis thethe action ofof thethe jUdge,judge, incorporatingincorporating thethe rulerule intointo domestic law,law, which makes itit partpart ofof domestic law.Jaw. Some lawyers. and not a few judges.judges, brought up in the tradition of thethe strict divide between international and municipal law, were inclined at first toto regard the Bangalore Principles as erroneous.6 They regarded with scepticism the amount of assistance which could be derived from an international treaty,treaty, other international law or the pronouncements of international or regionalregional couns, tribunals and committees. High judicial pronouncements In the seven years since Bangalore,Bangaiore, however, something of a sea change has come over the approach of couns in Australia,Australia. as well as in New Zealand and England. The clearest indication of the change in Australia can be foundfound inin thethe remarks of Brennan J (with the concurrence of Mason CJ and McHugh J) inin Maho v Queensland [No 2].7 In the course of explaining why a discriminatory doctrine, such as that of terra nullius (which refusedrefused toto recognise the rights and interests in land of the indigenous inhabitants of a settled colony such as Australia) could no longer be accepted as part of thethe law of Australia, Brennan J said: The expectations of the international community accord in this respect with the contemporary values of the Australian people. The opening up of the international remedies to individuals pursuant to Australia's accession to the Optional Pr%ealtoPr%eollo the International Covenant on Civil and Political Rights brings to bear on the common law the powerful influence of the Covenant and the international standards it imports. The common law does notnOl necessarily confonn with international law.law, but international law is a legitimate and See ego Samuels JA in Jagolago v District Court of New South Wales and Ors (1988) 12 NSWLR 558 (CA) at 580f. (1992) 175 CLR I. , .... ' ..... 7'17 4 Treaty-Making and Australia important influence on the development of the common law.law, especially when international law declares the existence of universal human rights. 8 To similar effect were the remarks of the English Coun of Appeal in Derbyshire County Council v Times Newspapers Limited,9 a decision later substantially affrnnedaffmned by the House of Lords.Lords.!OlO In a sense, it paved the way for the reasoning of Brennan J in Mabo and was referred to by him. In the course of his reasoning on a libel question. Balcombe LJL1 referred to article 10 of the European Convention on Hwnan Rights to which the United Kingdom is a party. That article relates to freedom of expression. His Lordship observed: Article 10 has not