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Rethinking the Permissive Function of Military Necessity in Internal Non-International Armed Conflict
Published online by Cambridge University Press: 07 June 2018
Abstract
This article advocates limiting the permissive impact of military necessity on the right to life. It has been argued that military necessity justifies deviations from international human rights law (IHRL) because this body of law is inadequate to deal with the necessities arising out of armed conflict. The article argues that while this rationale is convincing, it should not mean that conduct that is lawful under humanitarian law is necessarily also lawful under human rights law. The degree of force that may be used under international humanitarian law (IHL) is often superfluous. In some instances such violence is tempered by the jus ad bellum, but this body of law does not apply in internal non-international armed conflict (NIAC). The article concludes by exploring the potential for IHRL to play a role in tempering superfluous violence in NIAC that is similar to that which jus ad bellum plays in international conflict.
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References
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46 The High Court of Israel recognised this problem in the Targeted Killings case and opined that there is a difference between civilians who directly participate in hostilities sporadically and those who commit a chain of hostilities with short rests in between: HCJ 769/02 Public Committee Against Torture in Israel and Palestinian Society for the Protection of Human Rights and the Environment v Israel and Others ILDC 597 (IL 2006) [2006], para 39 (Targeted Killings).
47 US Department of Defense Law of War Manual, June 2015, 218, para 5.8.3.
48 ICTY, Prosecutor v Galić, Judgment, IT-98-29-T, Trial Chamber I, 5 December 2003, [47] (‘For the purpose of the protection of victims of armed conflict, the term “civilian” is defined negatively as anyone who is not a member of the armed forces or of an organized military group belonging to a party to the conflict’).
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52 Melzer (n 49) 82.
53 Hill-Cawthorne (n 9) 242–45.
54 Melzer, Nils, ‘Keeping the Balance between Military Necessity and Humanity: A Response to Four Critiques of the ICRC's Interpretive Guidance on the Notion of Direct Participation in Hostilities’ (2010) 42 New York University Journal of International Law and Politics 831, 896–913Google Scholar; Goodman, Ryan, ‘The Power to Kill or Capture Enemy Combatants’ (2013) 24 European Journal of International Law 819Google Scholar.
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61 Schabas (n 14) 607.
62 ibid. Without going into too much detail, the indifference of IHL to the overall purpose of armed conflict is generally thought of as a feature rather than a defect of the regime. Put simply, this is to maximise humanitarian protection. Such agnosticism precludes protection under IHL from being prejudiced by the overall ‘justness’ of the armed conflict. See also Sloane (n 13).
63 Blum (n 21) 400–01.
64 ibid 393.
65 US Department of Defense, Department of the Air Force, Basic Doctrine, Doctrine Document 1, 17 November 2003, 18 (‘A vital part of the new approach to warfare is the emerging arena of effects-based operations (EBO). A further step away from annihilation or attrition warfare, EBO explicitly and logically links the effects of individual tactical actions directly to desired military and political outcomes’); Dill, Janina, ‘The 21st Century Belligerent's Trilemma’ (2015) 26 European Journal of International Law 83, 93Google Scholar.
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70 ibid 1–128.
71 Blum (n 21) 417.
72 ibid 415–17.
73 Charter of the United Nations (entered into force 24 October 1945) UNTS XVI (UN Charter), arts 51 and 42.
74 McDougal and Feliciano (n 59) 527.
75 ibid 528.
76 UN Charter (n 73) art 51.
77 Nicaragua v US (n 34) [194].
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81 While this position is not universally accepted, it finds support in academia and practice: Greenwood, Christopher, ‘The Relationship between the Ius ad Bellum and Ius in Bello’ (1983) 9 Review of International Studies 221Google Scholar; for an alternate view, see Dinstein, Yoram, War, Aggression, and Self-Defense (4th edn, Cambridge University Press 2005) 237Google Scholar.
82 The examples raised by Anderson include the movement of targets from Afghanistan to ‘safe havens’ such as Pakistan, Yemen and Somalia: Anderson, Kenneth, ‘Targeted Killings and Drone Warfare: How We Came to Debate Whether There is a “Legal Geography of War”’ in Berkowitz, Peter (ed), Future Challenges in National Security and Law (Hoover Institution Press 2011) 17Google Scholar.
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87 The controversy surrounding whether a non-state armed group is capable of an ‘armed attack’ for the purposes of triggering self-defence is also noted.
88 See generally Bethlehem, Daniel, ‘Self-Defense Against an Imminent or Actual Armed Attack by Nonstate Actors’ (2012) 106 American Journal of International Law 770Google Scholar.
89 Blum, Gabriella, ‘The Dispensable Lives of Soldiers’ (2010) 2 Journal of Legal Analysis 69Google Scholar; Barak Medina, ‘Regulating Anti-Terror Warfare through the Individual Dangerousness Doctrine: Theory and the Israeli Supreme Court Jurisprudence’ (2013), available at SSRN: https://ssrn.com/abstract=2259158.
90 Sloane (n 13) 50.
91 Greenwood (n 81) 224.
92 ibid.
93 ibid.
94 UNSC Res 678 (29 November 1990), UN Doc S/RES/678, para 2.
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96 ibid.
97 Tom Dannenbaum, ‘Why Have We Criminalized Aggressive War?’ (2017) 126 Yale Law Journal 1242, 1275.
98 UN Charter (n 73) art 2(4) (‘All Members shall refrain in their international relations from the threat or use of force against the territorial integrity or political independence of any State, or in any other manner inconsistent with the Purpose of the United Nations’ (emphasis added)).
99 Kretzmer, David, ‘Rethinking the Application of IHL in Non-International Armed Conflicts’ (2009) 42 Israel Law Review 8, 23–31Google Scholar.
100 ECtHR, McCann and Others v United Kingdom, App No 18984/91, 27 September 1995, paras 202–14; ECtHR, Hamiyet Kaplan and Others v Turkey, App No 36749/97, 13 September 2005, paras 49–54; ECtHR, Güleç v Turkey, App No 54/1997/838/1044, 27 July 1998, para 71; see also Office of the High Commissioner for Human Rights (OHCHR), Basic Principles on the Use of Force and Firearms by Law Enforcement Officials (27 August–7 September 1990), UN Doc A/CONF.144/28/Rev.1, provision 2.
101 Kretzmer (n 99) 25.
102 ibid 22.
103 ibid 23.
104 ibid 36.
105 ibid 35–36.
106 Lieber Code (n 28).
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108 Additional Protocol II (n 39) art 6(5) (‘At the end of hostilities, the authorities in power shall endeavour to grant the broadest possible amnesty to persons who have participated in the armed conflict, or those deprived of their liberty for reasons related to the armed conflict, whether they are interned or detained’).
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111 Melzer (n 49) 31–36.
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118 ICRC, Commentary on the First Geneva Convention: Convention (I) for the Amelioration of the Condition of the Wounded and Sick in Armed Forces in the Field (Cambridge University Press 2016) (Updated Commentary), para 236Google Scholar.
119 ICTY, Prosecutor v Tadić, Opinion and Judgment, IT-94-1-T, Trial Chamber, 7 May 1997, [562].
120 ibid.
121 See, eg, ICTY, Prosecutor v Haradinaj and Others, Judgment, IT-04-84-T, Trial Chamber I, 3 April 2008, [33]–[56]; ICTY, Prosecutor v Limaj and Others, Judgment, IT-03-66-T, Trial Chamber II, 30 November 2005, [34]–[63].
122 Additional Protocol II (n 39) art 1(1).
123 Adil Ahmad Haque, ‘Triggers and Thresholds of Non-International Armed Conflict’, Just Security, 29 September 2016, https://www.justsecurity.org/33222/triggers-thresholds-non-international-armed-conflict.
124 Dannenbaum (n 97) 1272.
125 ibid.
126 Louise Arimatsu and Mohbuba Choudhury, ‘The Legal Classification of the Armed Conflict in Syria, Yemen, and Libya’, Chatham House, March 2014, 7–8, https://www.chathamhouse.org/sites/files/chathamhouse/home/chatham/public_html/sites/default/files/20140300ClassificationConflictsArimatsuChoudhury1.pdf.
127 ibid 8.
128 See Section 3.2.
129 Hill-Cawthorne (n 9) 232–34.
130 International Law Commission, Articles on Responsibility of States for Internationally Wrongful Acts, with Commentaries (2001), Report of the ILC, 53rd session [2001] 2 Yearbook of the International Law Commission, UN Doc A/56/10, art 25(2)(b).
131 de Silva, KM, Sri Lanka and the Defeat of the LTTE (Vijitha Yapa 2012) 192Google Scholar.
132 ibid 195.
133 ibid 196.
134 The Krupp Trial (n 24) 138–39.
135 Prosecutor v Tadić (n 36) [70] (‘International humanitarian law applies from the initiation of such armed conflicts and extends beyond the cessation of hostilities until a general conclusion of peace is reached; or, in the case of internal conflicts, a peaceful settlement is achieved. Until that moment, international humanitarian law continues to apply in the whole territory of the warring States or, in the case of internal conflicts, the whole territory under the control of a party, whether or not actual combat takes place there’).
136 ibid.
137 ICRS, Updated Commentary (n 118) para 461.
138 European Convention on Human Rights and Fundamental Freedoms (entered into force 3 September 1953) 213 UNTS 222.
139 ibid art 2(2).
140 International Covenant on Civil and Political Rights (entered into force 23 March 1976) 999 UNTS 171, art 6(1).
141 American Convention on Human Rights, Pact of San José, Costa Rica (entered into force 18 July 1978) 1144 UNTS 143, art 4.
142 African Charter on Human and Peoples’ Rights (entered into force 21 October 1986) 1520 UNTS 217, art 4.
143 Nowak, Manfred, U.N. Convention on Civil and Political Rights: CCPR Commentary (NP Engel 1993) 111Google Scholar.
144 UNGA, Note by the Secretary-General, Extrajudicial, Summary or Arbitrary Executions (5 September 2006), UN Doc A/61/311, para 42 (‘Proportionality deals with the question of how much force might be permissible. More precisely, the criterion of proportionality between the force used and the legitimate objective for which it is used requires that the escalation of force be broken off when the consequences for the suspect of applying a higher level of force would “outweigh” the value of the objective’).
145 ibid para 44 (‘The fundamental question is of proportionality between the objectively anticipatable likelihood that failing to incapacitate the individual would result in the deaths of others’); HRC, Draft General Comment No 36 (n 3) para 18; Philip Alston, Report of the Special Rapporteur on Extrajudicial, Summary or Arbitrary Executions (28 May 2010), UN Doc A/HRC/14/24Add.6, para 32.
146 See also Martin, Francisco Forrest, ‘Using International Human Rights Law for Establishing a Unified Use of Force Rule in the Law of Armed Conflict’ (2001) 64 Saskatchewan Law Review 347Google Scholar.
147 ECHR (n 138) art 2(2); ECtHR, McCann and Others v United Kingdom (n 100) para 194.
148 ECtHR, Finogenov and Others v Russia, App nos 18299/03 and 27311/03, 20 December 2011, para 211.
149 ibid para 218.
150 US Law of War Manual (n 47) 51, para 2.2.
151 Schabas (n 14) 605.
152 ECtHR, Isayeva, Yusupova and Bazyeva v Russia, App nos 57947/00, 57948/00 and 57949/00, 24 February 2005, para 11.
153 ibid para 160.
154 ibid para 28.
155 ibid para 178.
156 Schabas (n 14) 605.
157 Isayeva, Yusupova and Bazyeva v Russia (n 152) para 182.
158 ECHR (n 138) art 15(1).
159 ibid art 15(2).
160 ibid.
161 ECtHR, Ireland v United Kingdom¸ App no 5310/71, 18 January 1978), para 207.
162 US Military Tribunal at Nuremberg, The Hostages Trial: Trial of Wilhelm List and Others, Case No 47, Judgment, 8 July 1947–19 February 1948 (1949) Law Reports of Trials of War Criminals, Vol VIII, 34, 68–69 (‘We are not called upon to determine whether urgent military necessity for the devastation and destruction in the province of Finmark actually existed. We are concerned with the question whether the defendant at the time of its occurrence acted within the limits of honest judgment on the basis of the conditions prevailing at the time. The course of a military operation by the enemy is loaded with uncertainties, such as the numerical strength of the enemy, the quality of his equipment, his fighting spirit, the efficiency and daring of his commanders, and the uncertainty of his intentions’).
163 Ireland v United Kingdom (n 161) para 212.
164 ECtHR, Hugh Jordan v United Kingdom, App no 24746/94, 4 August 2001, para 103 (‘Where the events in issue lie wholly, or in large part, within the exclusive knowledge of the authorities, as for example in the case of persons within their control or custody, strong presumptions of fact will arise in respect of injuries and death which occur. Indeed the burden of proof may be regarded as resting on the authorities to provide a satisfactory and convincing explanation’).
165 OHCHR, International Legal Protection of Human Rights in Armed Conflict, HR/PUB/11/01 (United Nations 2011) 24.
166 See generally Ruys, Tom, ‘The Syrian Civil War and the Achilles’ Heel of the Law of Non-International Armed Conflict’ (2014) 50 Stanford Journal of International Law 247Google Scholar.
167 Additional Protocol I (n 27) art 1(4).
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