Hostname: page-component-586b7cd67f-rcrh6 Total loading time: 0 Render date: 2024-11-22T14:55:02.996Z Has data issue: false hasContentIssue false

When the State Sovereign Immunity Rule Meets Sovereign Wealth Funds in the Post Financial Crisis Era: Is There Still a Black Hole in International Law?

Published online by Cambridge University Press:  19 September 2018

Abstract

This article examines the state sovereign immunity rule in the context of a rising number of sovereign wealth funds and their ever-increasing value of cross-border commercial activities in the aftermath of the latest global financial crisis. The concept of sovereignty and the rule of sovereignty remain in a state of flux while new actors such as sovereign wealth funds are participating in global commercial activities in a nontransparent and politically motivated manner. Accordingly, states may pursue strategic foreign policy objectives through these newer investment arms in an unconventional way, thereby being deeply involved in the political-economic arena and distorting the existing concepts of international law. This article posits that there is an international law black hole in which sovereign wealth funds have come to engage in commercial activities as well as exercise the public functions traditionally associated with states (acts jure imperii). The doctrine of restrictive immunity has come into question and the bulk of local court decisions have offered little clear guidance. Against this backdrop three interconnected perspectives are then discussed with reference to emerging economies like China: the immunity rule, the principle of sovereignty, and the balance of power in globalization.

Type
INTERNATIONAL LAW AND PRACTICE
Copyright
© Foundation of the Leiden Journal of International Law 2018 

Access options

Get access to the full version of this content by using one of the access options below. (Log in options will check for institutional or personal access. Content may require purchase if you do not have access.)

Footnotes

*

Ph.D. Candidate, Faculty of Law, Chinese University of Hong Kong and Executive Director, Free Trade and ADR Research and Development Center, Shanghai University of Finance and Economics.

**

Chair Professor of Law, Shanghai Jiao Tong University Law School [[email protected]].

An earlier draft was presented in the conference ‘Policy Coherence of Public Investment: The Public Sector as Direct and Indirect Investor’ at the University of Oslo on 18 May 2017. The authors thank comments made by Beate Kristine Sjafjell, Jukka Mähönen, Ding Chen and other participants as well as the anonymous referees and Thomas Stanton. The authors also thank Nick Trudgen, Marilyn Fisher, and Ashley Stanley-Ryan for excellent editing input. Shu Shang’s research was supported by the People’s Republic of China Ministry of Education Humanities and Social Science Project (Youth Scholars), ‘Investor Facilitation and Protection in the Shanghai Free Trade Zone (14YJC820040)’.

References

1 E.g., Scott, S.V., International Law in World Politics: An Introduction (2010), 1927Google Scholar; Anghie, A., ‘Rethinking Sovereignty in International Law’, (2009) 5 Annual Review of Law and Social Science 291CrossRefGoogle Scholar.

2 Posner, E.A., The Perils of Global Legalism (2009), Ch. 8CrossRefGoogle Scholar.

3 Bremmer, I., ‘The Return of State Capitalism’, (2008) 50(3) Survival: Global Politics and Strategy 55CrossRefGoogle Scholar.

4 McNamara, T., ‘Foreign Sovereign Immunity during the New Nationalization Wave’, (2010) 11(1) Business Law International 538Google Scholar.

5 E.g., SOEs as Driving Force’, in Wolff, L.-C. (ed.), China Outbound Investments: A Guide to Law and Practice (2011), 4Google Scholar.

6 International Working Group of Sovereign Wealth Funds (IWG), Sovereign Wealth Funds Generally Accepted Principles and Practices ‘Santiago Principles’ (2008)Google Scholar; Gaukrodger, D., ‘Foreign State Immunity and Foreign Government Controlled Investors’, (2010) OECD Working Papers on International Investment, available at www.oecd.org/corporate/mne/WP-2010_2.pdf.Google Scholar

7 Mitchell, O.S., Piggott, J. and Kumru, C., ‘Managing Public Investment Funds: Best Practices and New Challenges’, (2008) Pension Research Council Working Paper PRC WP2008-07, available at pensionresearchcouncil.wharton.upenn.edu/wp-content/uploads/2015/09/MitchellPiggottKumru-WP-version-7.31.08.pdfGoogle Scholar.

9 Jen, S., ‘Sovereign Wealth Funds: What They Are and What’s Happening’, (2007) 8 World Economics 1, at 1–2Google Scholar.

10 For a description of different resources of SWF assets see Balin, B.J., ‘Sovereign Wealth Funds: A Critical Analysis’, (2009) Johns Hopkins University School of Advanced International Studies, available at papers.ssrn.com/sol3/papers.cfm?abstract_id=1477725Google Scholar.

11 Alhashel, B., ‘Sovereign Wealth Funds: A Literature Review’, (2015) 78 Journal of Economics and Business 113CrossRefGoogle Scholar.

12 Fund Rankings (2016), Sovereign Wealth Fund Institute, available at www.swfinstitute.org/fund-rankingsGoogle Scholar.

13 Ljubljanska Banka d.d. v. Croatia (2015), application no. 29003/07.

14 Whytock, C., ‘Foreign State Immunity and the Right to Court Access’, (2013) 93 Boston University Law Review 2035Google Scholar.

15 Ibid., at 2043.

16 FG Hemisphere Associates LLC v. Democratic Republic of the Congo & Ors, FACV 5, 6 & 7 of 2010 (‘Congo’).

17 La Generale des Carrieres et des Mines v. F.G. Hemisphere Associates LLC (Jersey), [2012] UKPC 27 (‘La Generale’).

18 For a general description of China’s ‘Go Globally’ strategy, which consists of a series of national policy incentives that are used by the Chinese government to encourage its companies to invest abroad see Alon, I. et al., ‘Chinese State-Owned Enterprises Go Global’, (2014) 35 Journal of Business Strategy 3CrossRefGoogle Scholar.

19 Gaukrodger, D., ‘Foreign State Immunity and Foreign Government Controlled Investors’, (2010) OECD Working Papers on International Investment, available at www.oecd.org/corporate/mne/WP-2010_2.pdfGoogle Scholar.

20 Cieślik, E., ‘Investment Strategy of Sovereign Funds from Emerging Markets: The Case of China’, (2014) 24 Bulletin of Geography. Socio-Economic Series 27, at 28CrossRefGoogle Scholar.

21 Koch-Weser, I.N. and Haacke, O., China Investment Corporation: Recent Developments in Performance, Strategy, and Governance (2014)Google Scholar.

24 Perez, S., ‘Qatar Holding Buys 20% Stake in BAA for $1.4 Billion’, The Wall Street Journal, 17 August 2012, available at www.wsj.com/articles/SB10000872396390444375104577595242977156080Google Scholar.

25 Carr, C., ‘“National Interest” Concerns and Uncertain Investment Regime Are Impeding Important Investments by Sovereign Wealth Funds’, (2013) 3 Harvard Business Review Online 67, available at www.hblr.org/wp-content/uploads/2013/03/Carr_National-Interest-Concerns.pdfGoogle Scholar.

26 Law of the People’s Republic of China on Judicial Immunity from Measures and Constraints of the Property of Foreign Central Banks, Law on Judicial Measures Over Assets of National Bank (2005).

27 Legislative Report on Enacting the First Law on Judicial Immunity of People’s Republic of China, 2 March 2006, available at www.fmprc.gov.cn/web/wjb_673085/zzjg_673183/t238012.shtml.

28 The IMF defines vulture funds as arbitrage-seeking investors who specialize in obtaining debt in the secondary markets at prices far below face value. Finlay, B., ‘Taming the Vulture: Turning Distressed-Debt Investors Into Agents of Social Change’, Henry L. Stimson Center, 2 July 2007, available at www.stimson.org/content/taming-vulture-turning-distressed-debt-investors-agents-social-changeGoogle Scholar.

29 For a discussion of China’s standing in response to being sued in a foreign court see Reeves, W.H., ‘The Foreign Sovereign before United States Courts’, (1970) 38 Fordham Law Review 455Google Scholar.

30 Democratic Republic of the Congo et al. v. FG Hemisphere Associates LLC, FACV 5, 6 & 7/2010, 8 June 2011, paras. 321, 464.

31 Arts. 13, 18(3), and 158(3) of the Basic Law of Hong Kong.

32 Art. 19(3) of the Basic Law of Hong Kong.

33 Procedurally, the courts of Hong Kong are bound to determine questions of fact concerning acts of state in accordance with a certificate issued by the Chief Executive based on a certifying document form the Central People’s Government of China.

34 Jackson v. PRC, 550 F. Supp. 869 (ND Ala, 1982); 596 F. Supp. 381; 794 F.2d 1490 (11th Cir. 1986) and 801 F. 2d 404 (11th Cir. 1986).

35 ‘PRC: An Aide Memoire of the Ministry of Foreign Affairs’, (1983) 22 ILM 81.

36 Huang, J. and Ma, J., ‘Immunities of States and Their Property: The Practice of the People’s Republic of China’, (1989) Hague Yearbook of International Law 163, at 165–6Google Scholar.

37 Wang, H., ‘Sovereign Immunity: Chinese Views and Practices’, (1987) 1 Journal of Chinese Law 23Google Scholar.

38 Wang, D., China’s Unequal Treaties: Narrating National History (2005), 2Google Scholar (claiming that China and foreign countries had 500–1,000 treaties, agreements and conventions that contained unequal provisions from 1840 to 1943).

39 China has had some early practices on privileges and immunities of diplomats and consuls since the Qing Dynasty but the judicial practices in this field of state immunities have been limited. Cohen, J.A. and Chiu, H., People’s China and International Law: A Documentary Study (1974), Vol. 2, Part VIIGoogle Scholar.

40 Sucharitkul, S., ‘Jurisdictional Immunities in Contemporary International Law from Asian Perspectives’, (2005) Chinese Journal of International Law 4, at 8Google Scholar.

41 [1977] 1 QB 529, [1976] 3 All ER 437, [1976] 1 WLR 868.

42 La Generale des Carriereset des Mines v. F.G. Hemisphere Associates LLC (Jersey), [2012] UKPC 27, 16.

44 Dixon, M., Textbook on International Law (2007), 181Google Scholar.

45 Sauvant, K.P. and Nolan, M.D., ‘China’s Outward Foreign Direct Investment and International Investment Law’, (2015) 18(4) Journal of International Economic Law 893, at 894Google Scholar.

47 See, for example, Jackson v. People’s Republic of China, 794 F.2d 1490 (1986).

48 Shen, W., ‘The Good, The Bad or The Ugly? – A Critique of the Decision on Jurisdiction and Competence in Tza Yap Shum v. The Republic of Peru’, (2011) 9(1) Chinese Journal of International Law 55CrossRefGoogle Scholar; Shen, W., ‘Confusion or Clarity in Perspective – Jurisprudential Review of Key Aspects in the Investor-State Arbitration Clause in the ASEAN-China Investment Treaty and the Jurisdictional Award of the First China-Related ICSID Case’, (2010) 4(1) World Arbitration and Mediation Review 27Google Scholar; Shen, W., ‘Is This a Great Leap Forward? – A Comparative Review of the Investor-State Arbitration Clause in the ASEAN-China Investment Treaty: From BIT Jurisprudential and Practical Perspectives’, (2010) 27(4) Journal of International Arbitration 379Google Scholar.

49 Jackson v. People’s Republic of China, 794 F.2d 1490 (1986), at 916.

51 The latest example of this trend is the Trans-Pacific Partnership’s inclusion of a chapter on SOEs and designated monopolies, which sets out disciplines aimed at ensuring a level playing field between SOEs and private entities: TPP, Ch. 17; Willemyns, I., ‘Disciplines on State-owned Enterprises in TPP: Have Expectations Been Met?’, (2016) Leuven Centre for Global Governance Studies, available at www.ghum.kuleuven.be/ggs/publications/working_papers/new_series/wp161-170/wp-168-willemyns-website.pdfGoogle Scholar.

52 Feldman, M., ‘The Standing of State-Owned Entities Under Investment Treaties’, in Sauvant, K.P. (ed.), Yearbook on International Investment Law & Policy 2010-2011 (2012), Ch. 15Google Scholar.

53 CSOB v. Slovak Republic, ICSID Case No. ARB/97/4, Decision on Jurisdiction, 24 May 1999, paras. 23–7.

54 Even after Congo, the Hong Kong Court of First Instance rejected a claim of crown immunity by a Chinese SOE and upheld an order for execution against assets located in Hong Kong due to the lack of central government control; TNB Fuel Services SDN BHD v. China National Coal Group Corporation HKCFI 1016.

55 Li, H., ‘China Investment Corporation: A Perspective on Accountability’, (2009) 43 International Lawyer 1495, at 1502–5.Google Scholar

58 Faden, M., ‘Improving Cross-Border Investment Regulation: A Case Study of China’s Largest and Least Known Sovereign Wealth Fund’, (2013) 7 East Asia Law Review 429, at 431–8Google Scholar.

59 Sauvant and Nolan, supra note 45.

60 Most of these equity and acquisition deals target at sovereign wealth funds and the portfolio of the government pension fund.

61 Willemyns, I., ‘Disciplines on State-Owned Enterprises in International Economics Law: Are We Moving in the Right Direction?’, (2016) Journal of International Economic Law 1Google Scholar.

62 Shen, W., ‘Is Brics’ New Development Bank New?’, (2014) 29(10) Butterworths Journal of International Banking and Finance Law 655, at 655–6Google Scholar.

63 Shen, W., ‘Asian Infrastructure Investment Bank: Gap Filler or System Challenger?’, (2015) 30(4) Butterworths Journal of International Banking and Financial Law 228, at 228–30Google Scholar.

64 Shen, W., ‘The ‘One Belt, One Road’ Initiative, The Renminbi Internationalisation Strategy and Neo-Global Financial Governance’, in Wolff, L.-C. and Xi, C. (eds.), Legal Dimensions of China’s Belt and Road Initiative (2016), Ch. 12Google Scholar.

65 OBB Personenverkehr AG v. Sachs, 135 S. Ct. 1172 (2015).

67 28 U.S.C. 1605 (a)(2).

68 Crowell, & Moring, LLP, ‘The Foreign Sovereign Immunities Act: 2013 Year in Review’, (2015) 21 Law & Business Review of the Americas 241, 250–60.Google Scholar

69 Bolivarian Republic of Venezuela v. Helmerich & Payne International Drilling Co., 137 S. Ct. 1312 (2017).

70 De Csepel v. Republic of Hungary, 714 F.3d 596 (D.C.Cir. 2013).

71 Atlantica Holdings v. Sovereign Wealth Fund Samruk-Kazyna JSC, No. 14-197 (2d Cir. 2016).

72 Thoennes, P.M., ‘Eo Nomine: The Divergence of State and Foreign Sovereign Immunity’, (2015) 19 Lewis & Clark Law Review 543, at 575–8Google Scholar.

73 Summers, L., ‘Op-Ed, Sovereign Funds Shake the Logic of Capitalism’, Financial Times, 30 July 2007.Google Scholar

74 Politi, J., ‘Sovereign Funds Face US Threat’, Financial Times, 14 February 2008, at 8.Google Scholar

75 Commission on the European Communities, A Common European Approach to Sovereign Wealth Funds (2008), 115 final, 27 February 2008, at 4.

76 US Treasury Department, ‘Treasury Reaches Agreement on Principles for Sovereign Wealth Fund Investment with Singapore and Abu Dhabi’, Press Release, 20 March 2008, available at www.treasury.gov/press-center/press-releases/Pages/hp881.aspx.

77 Templin, B.A., ‘State Entrepreneurism’, (2009) Thomas Jefferson School of Law Working Paper Series, available at www.papers.ssrn.com/sol3/papers.cfm?abstract_id=1428108Google Scholar.

78 Dixon, supra note 44, at 195.

79 Wallace, C.D., The Multinational Enterprise and Legal Control: Host State Sovereignty in An Era of Economic Globalization (2002)Google Scholar. The most well-known regulatory scheme of this type is the US’s inter-agency Committee on Foreign Investment in the US under the Exon-Florio regime, the purpose of which is to review all notices of pending foreign acquisitions of control over US companies by foreign investors and to block some deals if they pose a threat to national security.

80 Sender, H. and Smith, P., ‘IMF Urges Action on Sovereign Wealth’, Financial Times, 24 January 2008, at 4Google Scholar.

81 Apart from the immunity rule, the so-called odious debt doctrine has been also cited by a state government as an excuse not to pay sovereign debt. Posner, E.A. and Sykes, A.O., Economic Foundation of International Law (2013), 159Google Scholar.

82 Burke-White, W.W., ‘The Argentine Financial Crisis: State Liability Under BITs and the Legitimacy of the ICSID System’, (2008) 3 Asian Journal of WTO & Health 199, at 201Google Scholar; Van Harten, G., Investment Treaty Arbitration and Public Law (2007), 3Google Scholar.

83 Beijing Urban Construction Group Co. Ltd. v. Republic of Yemen, ICSID Case No. ARB/14/30.

84 Ibid., Decision on Jurisdiction, 31 May 2017, paras. 80–1.

85 Besson, S. and Marti, J.L. (eds), Deliberative Democracy and Its Discontents (2006), 196.Google Scholar

86 Stewart, F.L., ‘The Corporation, New Governance, and the Power of the Publicization Narrative’, (2014) 21(2) Indiana Journal of Global Legal Studies 513–51CrossRefGoogle Scholar.

87 Section 33(3)(2) of UK State Immunity Act 1978.

88 Delbrück, J., ‘Prospect for a “World (Internal) Law?”: Legal Developments in a Changing International System’, (2002) 9(2) Indiana Journal of Global Legal Studies 400, at 402Google Scholar.

89 Wallace, W., ‘The Sharing of Sovereignty: The European Paradox’, (1999) 47 Political Studies 503, at 506CrossRefGoogle Scholar.

90 Keohane, R.O., ‘Ironies of Sovereignty: The European Union and the United States’, (2002) 40 Journal of Common Market Studies 743, at 748CrossRefGoogle Scholar.

91 Kahandawaarachchi, T., ‘Politics of Ports: China’s Investment in Pakistan, Sri Lanka and Bangladesh’, University of Washington, 2015, available at hdl.handle.net/1773/33536Google Scholar.

92 Krisch, N., ‘More Equal Than the Rest? Hierarchy, Equality and US Predominance in International Law’, in Byers, M. and Nolte, G. (eds.), United States Hegemony and the Foundations of International Law (2003), 135, at 144CrossRefGoogle Scholar.

93 The US Supreme Court held that ‘only direct ownership of a majority of shares by the foreign States satisfies the statutory requirement’, excluding an entitlement to immunity for companies being only indirectly owned, Dole Food Co. v. Patrickson 538 US 468 [2003] 474.

94 Xue, H., Chinese Contemporary Perspectives on International Law: History, Culture and International Law (2012), 68Google Scholar.

95 Raustiala, K., ‘The Evolution of Territoriality: International Relations and American Law’, in Kahler, M. and Walter, B.F. (eds.), Territoriality and Conflict in An Area of Globalization (2006), 219, at 220.CrossRefGoogle Scholar

97 Hoffman, J., Sovereignty (1998), 21Google Scholar.

98 Brownlie, I., Principles of Public International Law (2003), 324Google Scholar.