The Politics of Order A critical theorization of selectivity in relation to ICTY’s indictment policy practice Dissertation zur Erlangung des Grades eines Doktor der Rechte im Fachbereich Rechtswissenschaft der Albert-Ludwigs-Universität Freiburg im Breisgau S.M. Bedoya Sánchez Erstgutachter: Prof. Dr. Hans-Jörg Albrecht Zweitgutachter: Prof. Dr. Ulrich Sieber Dekan: Prof. Dr. Matthias Jestaedt Ort: Freiburg im Breisgau Mündliche Prüfung: 02. und 03. Februar 2016 Erscheinungsjahr: 2016 2 Hic Sunt Dracones 3 4 CONTENTS I. Aim, method, disciplinary orientations and outline of the study ...................................................................................... 14 1.1 Introduction ...................................................................................... 14 1.2 Object of the research ...................................................................... 19 1.3 Research questions ........................................................................... 19 1.4 Disciplinary orientations of this research ......................................... 20 1.4.1 Critical International Legal Theory (CILT) ................................... 20 1.4.1.1 Background ................................................................................. 20 1.4.1.2 The new stream ........................................................................... 22 (1) Conceptual bases ............................................................................... 26 (2) The notion of critique ........................................................................ 28 a) Internal incoherence ........................................................................... 30 b) Constrained structure ......................................................................... 32 I) Liberal ideology .................................................................................. 32 II) International legal argument ............................................................. 34 c) Radical indeterminacy ........................................................................ 37 1.4.2 Definition of critique for this study ............................................... 40 1.4.3 Critical approaches to international criminal law (CAICL) .......... 45 1.4.3.1 Liberal legalism in ICL ................................................................ 45 1.4.3.2 Rejection of the ‘domestic analogy’ ............................................ 49 1.4.3.3 Contribution of CAICL perspective ............................................ 53 1.5 Research concepts ............................................................................ 54 1.5.1 Non-legality and soft-law .............................................................. 54 1.5.2 Indictment policy ........................................................................... 57 1.5.3 Selectivity and non-legality ........................................................... 60 1.6 Methodology .................................................................................... 62 1.6.1 Sources ........................................................................................... 64 1.6.2 Quasi-ethnography ......................................................................... 64 1.7 Outline of the thesis ......................................................................... 65 II. Background: The situation in the Former Yugoslavia and the ICTY .................................................................................. 67 2.1 Introduction ...................................................................................... 67 2.2 The Yugoslav wars ........................................................................... 68 2.2.1 Slovenia and Croatia ...................................................................... 72 5 2.2.2 Bosnia and Herzegovina ................................................................ 75 2.2.3 Kosovo ........................................................................................... 81 2.3 History of ICTY’s creation ................................................................ 84 2.3.1 The 1992 Commission of Experts ................................................. 84 2.3.2 UN Security Council Resolutions 808 and 827 ............................. 87 2.4 Conclusions ...................................................................................... 91 III. The formulation of indictment policies in the OTP’s different tenures .............................................................................................. 93 3.1 Introduction ...................................................................................... 93 3.2 Richard Goldstone (August 1994 – September 1996) ..................... 94 3.2.1 Introduction .................................................................................... 94 3.2.2 Contextual factors .......................................................................... 96 3.2.2.1 Continuation of wars ................................................................... 96 3.2.2.2 Ambivalence of the Security Council and the “international community” ................................................................................. 99 3.2.2.3 Lack of resources ...................................................................... 105 3.2.3 Formal considerations .................................................................. 107 3.3.3.1Substantive goals and initial policy criteria ................................ 107 3.2.3.2 The 1995 criteria ........................................................................ 108 3.2.4 Policy decisions ........................................................................... 111 3.2.4.1 Dictated by circumstance .......................................................... 113 3.2.4.2 Public image .............................................................................. 114 3.2.4.3 The pyramidal strategy .............................................................. 114 3.3 Louise Arbour (October 1996 – September 1999) ......................... 116 3.3.1 Introduction .................................................................................. 116 3.3.2 Contextual factors ........................................................................ 118 3.3.2.1 Problems of cooperation and compliance ................................. 118 3.3.2.2 The Kosovo Crisis ..................................................................... 120 3.3.2.3 NATO intervention ................................................................... 123 3.3.2.4 Limited resources ...................................................................... 125 3.3.3 Formal considerations: Substantive goals ................................... 127 3.3.4 Policy decisions ........................................................................... 129 3.3.4.1 Sealed indictments .................................................................... 129 3.3.4.2 The 1998 review: withdrawal of indictments ........................... 130 3.3.4.3 Indicting Milošević .................................................................... 131 3.3.4.4 The offence strategy .................................................................. 132 3.4 Carla Del Ponte (September 1999 – December 2007) ................... 133 3.4.1 Introduction .................................................................................. 133 6 3.4.2 Contextual factors ........................................................................ 135 3.4.2.1 International actors ................................................................... 135 3.4.2.2 Regional actors ......................................................................... 138 (1) Serbia .............................................................................................. 138 (2) Croatia ............................................................................................. 140 (3) Kosovo ............................................................................................ 144 3.4.2.3 Completion strategy .................................................................. 145 3.4.2.4 Insufficient funds ...................................................................... 147 3.4.3 Formal considerations .................................................................. 149 3.4.3.1 Substantive goals ...................................................................... 149 3.4.3.2 Policy criteria ............................................................................ 152 3.4.4 Policy decisions ........................................................................... 153 3.4.4.1 The “indict-all-parties” strategy ............................................... 156 3.5 Conclusions .................................................................................... 158 IV. Selectivity and non-legality patterns in indictment policy ....... 160 4.1 Introduction .................................................................................... 160 4.2 Indictment policy from the outside ................................................ 161 4.2.1 Economic regulation .................................................................... 161 4.2.1.1 Fifth Committee and the Advisory Committee on Administrative and Budgetary Questions (ACABQ) ............... 161 1) Goldstone: Indictment ‘productivity’ ................................................ 165 2) Arbour: Introducing performance indicators ..................................... 168 3) Del Ponte: Efficiency