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Compulsory Jurisdiction and the Use of Force as a Legal Issue: The Epoch-Making Judgment of the International Court of Justice in Nicaragua v United States of America
Published online by Cambridge University Press: 21 May 2009
Extract
The system of dissenting and separate opinions is said to be essential to the success of the World Court and through it, of international law. On that basis international law seems to be enjoying unprecedented prosperity, for, by contrast with the Permanent Court of International Justice, separate and dissenting opinions currently exceed the judgments of the International Court of Justice (hereinafter the Court) by a considerable margin in terms of the number of pages, a new record being set by Judge Schwebel's dissenting opinion in the judgment of the Court of 27 June 1986. Of course, this situation may be less indicative of the success of international law than to the fact that its scope and content are becoming increasingly open to question. In any event, international law may derive more rather than less strength from the fact that dividing lines are not drawn automatically between judges from North and South or East and West. Even the judgments in the by now famous cases of the American hostages in Tehran and the (para)military activities in and against Nicaragua are widely supported by judges hailing from the main forms of civilisation and the principal legal systems.
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References
1. The idea for this article resulted from the contributions of both authors to a discussion on the Nicaragua v US case organized by the Leyden-Amsterdam-Columbia Summer Program in American Law at Leyden University on 21 July 1986. The authors want to thank all the participants to that provocative discussion.
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36. These phases cover the consent by the parties concerned to international dispute settlement; the choice of a specific means; the designation of an appointing authority, if any; the composition of the forum for conciliation or arbitration; the determination of the procedure; the choice of the applicable substantive law; the acceptance of the decision; and the enforcement of the decision.
37. Verzijl, J.H.W., Inter-State Disputes and their Settlement (1976) pp. 71–85Google Scholar and 390–402 (International Law in Historical Perspective series, vol. 8).
38. De Waart, , op.cit. n. 16, pp. 190–191Google Scholar. The survey covers 54 cases up to the seventies. Since 1970, 11 cases have been adjudicated by the Court: Fisheries jurisdiction (UK v Iceland 1974); Fisheries jurisdiction (Federal Republic of Germany v Iceland 1974); Nuclear tests (Australia v France 1974); Nuclear tests (New Zealand v France 1974); Aegean Sea continental shelf (Greece v Turkey 1978); United States diplomatic and consular staff in Tehran (US v lran 1980); Continental shelf (Tunisia v Libya 1982); Delimitation of the maritime boundary in the Gulf of Maine area (Canada v US 1984); Continental shelf (Libya v Malta 1985); Military and paramilitary activities in and against Nicaragua (Nicaragua v US 1986); and Frontier dispute (Burkina Faso v Mali 1986).
39. Ibid., p. 201. Apart from four (Tunisia v Libya, Libya v Malta, Canada v US and Burkina Faso v Mali) the 11 cases mentioned in n. 38 were adjudicated in default of one of the parties, i.e., Iceland, France, Turkey, Iran and the US. See Elkind, J.B., Non-Appearance Before the International Court of Justice: Functional and Comparative Analysis (1984)Google Scholar.
40. Case of the right of passage over Indian territory (Preliminary objections), ICJ Rep. 1957, pp. 145–147Google Scholar.
41. Glennon, M.J., ‘Protecting the Court's Institutional Interests: Why Not the Marbury Approach?’ 81 AJIL (1987) pp. 121–129CrossRefGoogle Scholar. See also Schwarzenberger, , International Judicial Law, op.cit. n. 6, p. 504Google Scholar.
42. Glennon, , loc.cit. n. 41, p. 124Google Scholar. Glennon argues that in 1803 the US Supreme Court abnegated its jurisdiction (Marbury v Madison) and thus established for all time that it has the final say on what the US Constitution means. However, regrettable or not, the UN Charter is not a constitution and the ICJ not a constitutional court. Therefore it is really doubtful whether the Marbury approach could have been successfully copied from its American setting. Moreover, the Court had already rejected Judge Lauterpacht's opinion on the invalidity of ‘self-judging’ reservations to the Optional Clause in the case of certain Norwegian loans.
43. ICJ Rep. 1984, pp. 601–602. See also Robinson, D.R. (legal adviser US Department of State), ‘Observations on the International Court of Justice's November 26, 1984 Judgment on Jurisdiction and Admissibility in the Case of Nicaragua v United States of America’, 79 AJIL (1985) pp. 422–430Google Scholar.
44. See the UN publication, Systematic Survey of Treaties for the Pacific Settlement of International Disputes 1928–1948 (1949) p. 1156Google Scholar. This survey, which was prepared by the UN secretariat, includes Nicaragua's declaration in the list of ‘Declarations continuing in force under Article 36, paragraph 5, of the Statute of the International Court of Justice’ (pp. 1150–1159). Art. 36, para. 2, of the Statute of the PCIJ provided that ‘The Members of the League of Nations and the States mentioned in the Annex to the Covenant may, either when signing or ratifying the Protocol to which the present Statute is adjoined, or at a later moment, declare that they recognize as compulsory ipso factoand without special agreement in relation to any other Member or State accepting the same obligation, the jurisdiction of the Court..’
45. ICJ Rep. 1984, p. 408.
46. Ibid., p. 559.
47. All in all the Court was thus enabled to uphold its jurisdiction by 15 votes to 1 (Judge Schwebel dissenting). See ICJ Rep. 1984, pp. 442, 461–465, 473–489, 517–532 and 533–545.
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49. ICJ Rep. 1984, p. 413. For the meaning of estoppel in German Law cf., Hohmann, H., ‘§242 BGB und unzulässige Rechtsaüsiibung in der Rechtsprechung des BGH’, 14 Juristische Arbeitsblätter (1982) pp. 112–117Google Scholar. For the meaning of that principle in European Community law and public international law cf., Hohmann, H., ‘Warenzeichenrecht und Europäisches Gemeinschaftsrecht’, 17 Juristische Arbeitsblätter (1985) pp. 381–387Google Scholar; Bleckmann, A., ‘Die Aufgabeneiner Methodenlehre des Völkerrechts (1978) pp. 57–65Google Scholar.
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52. ICJ Rep. 1984, p. 398. The case was registered a few days after the US veto against the draft resolution condemning the laying of sea-mines. Cf., 32 Vereinte Nationen (1984) pp. 97 and 111Google Scholar.
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55. Wengler, loccit. n. 12.
56. Nicaragua did not invoke the 1956 bilateral treaty in its Application. However, the Court allowed it to do so in its Memorial, ICJ Rep. 1984, pp. 426 and 427. See also Kooijmans, , loc.cit. n. 12, pp. 80–81Google Scholar.
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58. ICJ Rep. 1984, pp. 628–629.
59. Case of certain Norwegian loan, Judgment, ICJ Rep. 1957, pp. 24–25.
60. See the UN publication mentioned in n. 44 supra, p. 1144Google Scholar. In the Nuclear tests case France refused to accept the jurisdiction of the Court under the 1928 General Act, Nuclear Tests (Australia v France), Interim Protection, Order of 22 June 1973, ICJ Rep. 1973, p. 100. Judge De Castro, who upheld the Court's jurisdiction under the General Act, dealt with this issue at great length in his dissenting opinion to the judgment on the merits (ICJ Rep. 1974, pp. 377–384). See also De Waart, , op.cit. n. 16, pp. 82–91Google Scholar.
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65. Ibid., pp. 452–453.
66. ICJ Rep. 1986, p. 137. See also ICJ Rep. 1984, pp. 427–428.
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68. Op.cit. n. 61, p. 620.
69. On 1 May 1985 the US gave written notice to the Government of Nicaragua to terminate the 1956 treaty in accordance with Art. XXV, para. 3, thereof. The treaty-relationship was thus terminated on 1 May 1986. Of course, this did not affect the jurisdiction of the Court under Art. XXIV, para. 2, in the present case.
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71. ICJ Rep. 1984, p. 610.
72. Ibid., p. 422.
73. ICJ Rep. 1984 and 1986, pp. 424 and 29–38 respectively. In this connection it should be mentioned that on 15 August 1984, prior to the closure of the written proceedings on the questions of jurisdiction and admissibility, El Salvador had filed a Declaration of Intervention under Art. 63 of the Statute. On 4 October 1984 the Court decided by nine votes to six not to hold a hearing on the Declaration of Intervention. Judge Lachs, who belonged to the majority, apparently regretted his vote in favour and afterwards regarded it as an ‘error’ (ICJ Rep. 1986, pp. 170–171). With near unanimity – 14 votes to 1 (Judge Schwebel dissenting) – the Court also decided that the Declaration was inadmissible inasmuch as it related to the phase of jurisdiction of the Court and admissibility of Nicaragua's Application. Judge Lachs upheld his vote on this point. See also Sztucki, J., ‘Intervention under Article 63 of the ICJ Statute in the Phase of Preliminary Proceedings: the “Salvadoran Incident” ’, 79 AJIL (1985) pp. 1005–1036Google Scholar; Schwarzenberger, , International Judicial Law, op.cit. n. 6, pp. 399–411Google Scholar.
74. ICJ Rep. 1984, p. 425. On 28 July 1986 Nicaragua instituted proceedings before the Court against Costa Rica and Honduras concerning border and transborder armed actions organised by contrasin the territories of Costa Rica (since 1982) and Honduras (since 1980). On 12 August 1987, however, the Agent of Nicaragua gave notice of the discontinuance of the proceedings instituted in the Court against Costa Rica (Press Communique No. 87/19). By an order of the President of the Court of 19 August 1987 the case was removed from the list (Press Communiqué No.87/21). As for the proceedings against Honduras, the Agents of both parties have requested the postponement of the opening of oral proceedings by a joint letter dated 13 August 1987 (Press Communiqué No. 87/20). Nicaragua and Honduras are of the opinion that the ‘…judicial situation is to be reviewed by them on the occasion of the Meeting of Central-American Presidents to be held in one hundred and fifty days' time, according to the undertaking laid down in that plan, with a view to reaching agreement on a discontinuance of international judicial proceedings on the situation in Central America’ The current regional peace efforts explain the above development.
75. ICJ Rep. 1984, p. 424.
76. See Wengler, , loc.cit. n. 32, p. 2995Google Scholar. According to Judge Padilla Nervo in his separate opinion to the judgment of the Court in the North Sea continental shelf cases ‘Customary rules belonging to the category of jus cogens cannot be subjected to unilateral reservations’ (ICJ Rep. 1969, pp. 98–99). Be this as it may, this does not hold true for conditional Optional Clauses, despite their negotiating element. There is no legal obligation for States to settle their international disputes by judicial settlement, even if rules of jus cogens are at stake. From that point of view the mere fact that States exempt disputes on rules of jus cogens from the compulsory jurisdiction of the Court does not make the pertinent reservation invalid. Of course, the Court may understand a multilateral treaty reservation as not exempting from its jurisdiction rules of customary international law in general and rules of jus cogens in particular.
77. The Court noted that the US did not deny the jus cogenscharacter of the prohibition of the use of force (ICJ Rep. 1986, p. 101).
78. ICJ Rep. 1986, p. 153.
79. Ibid., p. 98.
80. Ibid., p. 98.
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90. Cf., for example, the North Atlantic Treaty of 4 April 1949, Arts. 5 and 6; Charter of the Organization of American States of 30 April 1948, Art. 27.
91. ICJ Rep. 1986, pp. 104 and 105.
92. Ibid., p. 110.
93. Ibid., p. 151.
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97. ICJ Rep. 1986, p. 108.
98. Ibid., p. 133.
99. Ibid., p. 134.
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101. ICJ Rep. 1986, p. 134.
102. Ibid., p. 156. See also n. 94 supra1.
103. Türk, D. and de Waart, P.J.I.M., ‘The Right to Development’, in Bulajić, M., Pindić, D. and Marinković, M., eds., The Charter of Economic Rights and Duties of States: Ten Years of Implementation (1986) pp. 175–188Google Scholar; Hohmann, H., ‘Justice social et développement par le NOEI?’, Revue de droit international et de science diplomatique etjuridique (1980) pp. 217–231 and (1981) pp. 82–88Google Scholar; Hohmann, H., ‘Recht auf Entwicklung in der internationalen Diskussion’, 30 Vereinte Nationen (1982) pp. 59–64Google Scholar.
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105. Ibid., pp. 329–330.
106. GA Res. 41/128 of 4 December 1986, adopted by 146 to 1 (the USA dissenting) with 8 abstentions (Denmark, the Federal Republic of Germany, Finland, Iceland, Israel, Japan, Sweden and the UK).
107. ICJ Rep. 1986, p. 138.
108. Doc. A/39/504/Add. of 23 October 1984, p. 91. See also Bulajić, M., Principles of International Development Law: Progressive Development of International Law Relating to a New International Economic Order (1986) pp. 240–245Google Scholar.
109. Absolute poverty is defined as a condition of life so characterized by malnutrition, illiteracy and disease as to be beneath any reasonable definition of human decency. See World Development Report 1980, The World Bank (08 1980) p. 32CrossRefGoogle Scholar.
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112. Christenson, G.A., ‘The World Court and Jus Cogens’, 81 AJIL (1987) pp. 93–101CrossRefGoogle Scholar. The impact of a time of emergency is explicitly recognized in international human rights instruments. Cf., the 1966 International Covenant on Civil and Political Rights, Art. 4. This has already urged lawyers to draft minimum standards which authorities should take into account in exercising their powers, i.e., the Minimum standards of human rights in a state of exception, adopted by the 61st Conference of the International Law Association (Report of the sixty-first Conference (1984) pp. 56–95) and the Siracusa Principles on the limitation and derogation provisions in the International Covenant on Civil and Political Rights of 1984 ( 7 Human Rights Quarterly (1985) pp. 3–34CrossRefGoogle Scholar). See also the Limburg Principles on the implementation of the International Covenant on Economic, Social and Cultural Rights of 1986, 37 The Review of the International Commission of Jurists (12 1986) pp. 43–53Google Scholar. These principles concern, amongst others, the invoking of national security to justify measures limiting certain rights (ibid., p. 49).
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114. See paragraph 3.1 supra.
115. The then President of the Court, Judge Elias, in his Speech of Welcome to the Pope, 13 May 1985, International Court of Justice, Annex 1 to Press Communique No. 98/9. As State practice shows, States abide by the judgment of the Court sooner or later. There is no reason to expect that the US will become an exception to this.
116. ICJ Rep. 1962, p. 163.
117. The American appraisals, referred to in n. 5, of course strike a different note. See Hargrove, J.L., ‘The Nicaragua Judgment and the Future of the Law of Force and Self-Defense’, 81 AJIL (1987) pp. 135–143CrossRefGoogle Scholar. According to him, 'it is not the business of courts to send messages or stand up to litigants (and to imply that the Court acted or would be justified in acting with any such intention would impute to it a judicially unworthy act)’.
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