Published
by the International Judicial Academy, Washington, D.C., with assistance
from the
American Society of International Law
Summer 2016 Issue |
In this issue
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SPECIAL REPORT
Recent
Developments in International Human Rights Law
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By: Dinah
Shelton, Manatt/Ahn Professor of International Law (emeritus),
The George
Washington University Law School
In the seventy
years since the founding of the United Nations, human rights law has expanded
from the few references in the United Nations Charter to comprise a lengthy
list of guarantees in global and regional treaties, supplemented by
declarations and an ever-growing jurisprudence of treaty bodies and courts. Not
every step is forward, however, and there have been stumbles and set-backs that
hinder the effective implementation and enforcement of human rights. Some of
the most significant trends and developments are summarized here.
1. Treaty
proliferation.
Embracing common
human identity is at the core of the human rights provisions of the United
Nations Charter (Charter) and 1948 Universal Declaration of Human Rights
(UDHR). Language in the Charter and UDHR emphasizes the shared identity of
all humans and their equality in dignity and rights. All states have positive
and negative obligations to respect, protect, promote, and fulfill the
guaranteed rights through domestic laws and institutions. Global and regional
institutions and complaint procedures have been established to provide avenues
for individuals to seek redress when states fail to comply with their human
rights obligations.
Human rights law
is universal not only in aspiration, but in practice, insofar as it has been
accepted, at least in theory, by all states, despite differences in histories,
governments, legal systems, and cultures. Every U.N. Member State is bound by
the Charter’s human rights pro-visions and is subject to universal periodic
monitoring. All Member States have also accepted at least one of the nine
core U.N. human rights treaties and many of the treaties are approaching
universal ratification. The Convention on the Rights of the Child, for
example, has been ratified by 196 states – three more than are members of the
United Nations (193). The United States is now the only country on the planet
that is not a party to this treaty.
Human rights law also
recognizes, however, that many human rights are exercised in a group or social
setting and that the group itself, be it a family, culture, or indigenous
people, may require protection for its continued existence, based on the
assumption that the resultant diversity is a positive good. The duality
resulting from recognizing both human unity and human diversity has produced tensions
and debates about the appropriate range of allowable differences between
regions and peoples in their exercise of rights and obligations. Respecting
individual differences and the many forms of identity while maintaining a
common core of human rights poses challenges for the future of human rights law
as regional human rights systems proliferate and a seemingly endless number of
groups each demands its own set of treaty rights.
At present, five out of
the nine core UN human rights treaties address identity claims: the Convention
on the Elimination of All Forms of Racial Discrimination (CERD),[1] the Convention
on the Elimination of All Forms of Discrimination Against Women (CEDAW),[2] the Convention on the Rights of the Child (1990),[3] the
International Convention on the Protection of the Rights of All Migrant Workers
and Members of Their Families,[4] and the Convention on the Rights of Persons with Disabilities.[5] Regional treaties include the European Framework Convention for the Protection
of National Minorities,[6] the European Charter for Regional or Minority Languages,[7] the
Inter-American Convention on the Prevention, Punishment and Eradication of
Violence against Women,[8] the Inter-American Convention on
the Elimination of All Forms of Discrimination Against
Persons with Disabilities,[9] the African Charter Protocol on the Rights of Women in Africa,[10] and the
African Charter on the Rights and Welfare of the African Child.[11]
In respect to declaratory
instruments, both the United Nations and the Organization of American States
(OAS) have adopted declarations on the rights of indigenous peoples,[12] and the OAS has adopted a
convention on the rights of the elderly.[13] The UN also has in
preparation a declaration on the rights of peasants and other people working in
rural areas, with the proposal that these groups be guaranteed the “right to
sovereignty over the natural resources present in their communities,”[14] an extraordinary
provision in terms of human rights and general international law, because
“sovereignty” is traditionally considered an attribute accorded states only.
Persons belonging to sexual minorities have pressed for declarations of their
rights as well.[15]
With normative
proliferation comes institutional proliferation, as the global treaties and
some of the regional ones establish independent monitoring bodies and
procedures. Despite efforts at coordination, there is a risk of differences in
priorities and policies, if not conflicting legal norms. Activism for specific
instruments covering specific identities may reflect so-called “identity
politics,” but may also respond to the jurisprudence of some human rights
bodies that have accorded considerable deference to the traditions and values
of societies as wholes, seemingly overriding the legitimate concerns of
minority (often-disfavored or suspect) groups. Such activism may also reflect
the failure of general human rights law to protect certain minorities from
gross violations of human rights, including instances of genocide and crimes
against humanity such as has occurred in the Balkans, Rwanda, Sudan and Syria.
In each of these instances violence centered on religious and/or ethnic
differences. International criminal law has recognized the targeting of
persons because of these differences and defined certain crimes, such as
genocide, as persecution based on group identity. Whether the risks of
exacerbating differences outweigh the value of reaffirming a shared human
identity and rights of members of specific targeted groups is open to debate.
It is a debate that is likely to continue as various groups demand their own
legal statements of rights.
2. New regional
institutions
The long-standing European
and Inter-American human rights systems today find echo in regional and
sub-regional institutions around the globe. In Africa, where the African
Charter on Human and Peoples Rights was adopted in 1981, a major institutional
change came with the adoption on 8 June 1998 of an Additional Protocol to the
Charter on the establishment of an African Court on Human and Peoples’ Rights.
The Court is now fully functioning and has decided some major human rights
cases, including ones concerning human rights and democracy, and freedom of the
press.[16] The Court issued its first judgment on the merits of a case in June 2013, a
highly important case concerning political parties and elections in Tanzania.
Mtikila v. Tanzania, App.
No. 011/2011, Judgment of June 14, 2013. This is a sensitive issue in a region
where States are still heavily committed to the doctrine of non-intervention in
domestic matters. In the Mtikila case the government argued that the entire
matter should be considered to raise political questions outside the Court’s
competence. The Court disagreed and gave little deference to Tanzania’s
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arguments about the need to afford it broad discretion in organizing its
political system, given its history and social values. The Court’s ability and
willingness to engage in this scrutiny may have been strengthened by the
African Union’s recent concern with building African democratic institutions,
but the Court also invoked decisions of the African Commission and judgments of
the other regional courts to support its reasoning. As at January, 2016, the
Court received 74 applications and finalized 25 cases.
The African Court is
unique thus far among regional human rights courts in electing a majority of
judges with prior domestic judicial experience, a factor that could have a
positive impact on the procedures and the outcome of cases, as well as
compliance over time, as these judges may be better equipped to decide issues
of evidence, procedure, and case management. In addition, if domestic courts
are held in high regard this could enhance the reputation of the regional
court. The prior judicial experience of African judges could also facilitate
their relations with other judges in the national systems and encourage
incorporation and application of the regional norms and court decisions.
Further north, the
political changes and conflicts that swept many countries in North Africa and
the Eastern Mediterranean since 2010 have led the League of Arab States to take
several new and stronger actions concerning human rights. On November 16, 2011,
the League condemned the human rights violations of Syria’s government. The
League gave Damascus three days to withdraw military forces from occupied
cities, start talks between the government and opposition, and pave the way for
an observer team of military peacekeepers and human rights experts. The
government rejected the demand. Members then voted to suspend the State from
participating in the League and overwhelmingly approved sanctions on November
28, 2011. The sanctions included freezing the assets of senior officials in the
Syrian government, banning visits by those officials to other Arab nations, and
ending transactions with the Syrian central bank.
The second major
development was the decision of the League’s Council in 2014 to adopt a Statute
for an Arab Court of Human Rights, providing for the first time an institution
to hear claims of human rights violations.[17] The Statute confirms “that Arab Conventions on human rights to which relevant
States are party, including the Arab Charter on Human Rights, constitute the
legal framework for the human being in the Arab States to enjoy and practice
his/her rights,” and that “the setting up of an Arab Court of Human Rights will
help to achieve the purposes and objectives of the Arab Charter on Human
Rights.” The Court is to have seven judges who will serve a four-year term
renewable once. The Court’s jurisdiction extends to all “suits and conflicts”
resulting from the implementation and interpretation of the Arab Charter of Human
Rights, or any other Arab convention in the field of human rights involving a
member State. There is no right of individual petition, however. Cases may be
brought on the basis of diplomatic protection by the State of nationality of
the victim of an alleged violation. In addition, State Parties can accept, when
ratifying or acceding to the Statute or at any time later, that one or more
NGOs that are accredited and working in the field of human rights in the State
whose subject claims to be a victim of a human rights violation has access to
the Court (Statute art. 19).
Several unique provisions
are included in the Statute. First, the Court is required to hold public
hearings in every case, unless the parties request or the Court decides it is
in the interest of justice to do otherwise. Second, the Court has a mandatory
60 days in which to enter a judgment after the end of its deliberations.
Third, article 27 of the Statute provides a lengthy list of grounds to ask the
Court to reconsideration a decision. Finally, and most problematic for the
independence of the Court, it may draft its Rules of Court, but the Rules must
be submitted to the Assembly of States Parties for approval. The Statute will
enter into force after seven of the Member States have ratified it and
deposited the instruments of ratification; the Statute will then be operative
one year after it has entered into force. The headquarters of the Court is in
Bahrain, which has long promoted creation of the Court.
In Asia, on 18 November
2012, the Heads of State of ASEAN adopted the ASEAN Human Rights Declaration.[18] Its Preamble reaffirms adherence to the 2007 ASEAN Charter, in particular
respect for and promotion and protection of human rights and fundamental
freedoms, ‘as well as in the principles of democracy, the rule of law and good
governance,’ and a ‘commitment to the Universal Declaration of Human Rights,
the Charter of the United Nations, the Vienna Declaration and Programme of
Action, and other international human rights instruments to which ASEAN Member
States are parties.’ A few add new dimensions to UDHR rights, including the
reference to human trafficking in the Article 13 provision banning slavery and
servitude, with specific mention of the problem of child labour in Article 27, which
concerns the right to work. The Declaration also mentions the rights of the
elderly, persons with disabilities, and migrant workers. Other new elements
include explicit mention of the rights of those suffering from communicable
diseases, including HIV/Aids, and the right to reproductive health within the
provision on the right to health (Article 29). The right to an adequate
standard of living includes the right to safe drinking water and sanitation
(Article 28). Among the omissions, the ASEAN Declaration is notable in not
mentioning freedom of association.
3. Set-backs and concerns
All human rights bodies
report chronic shortages of personnel and financial resources, hindering their
ability to monitor state compliance with their human rights obligations. Many
of them are dependent on outside funding due to the lack of resources provided
by states parties. The Inter-American Commission on Human Rights reported in
mid-2016 that it would be forced to cancel its remaining sessions for the year
and lay off 40% of its legal staff if the situation were not addressed
immediately. It may not be, because a weak monitoring body is less able to
point to human rights violations and deficiencies in implementation. Some
states, in particular, have reacted negatively to decisions of human rights
bodies, withdrawing funding and representatives, even in rare instances
denouncing a treaty. Pressure is exerted on courts to give greater deference to
governmental decisions and find in favor of the state when cases are decided on
the merits. In the European system, the failure of compliance with judgments
has led to an unsustainable caseload, resulting not in political action against
the non-complying states, but further restrictions on access to the European
Court of Human Rights. At the global level, inaction in the face of gross and
systematic violations in various countries is leading to a sense of
disillusionment if not cynicism about the commitment of member states to the
human rights agenda that has been so prominent in the history of the
organization. While some see the glass half full and others see it as half
empty, some see only broken pieces of an empty container. Domestic politics in
member states undoubtedly influences foreign policy and the future of human rights
law will depend heavily on developments within each state as well as within
international organizations.
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[1].
G.A. Res. 2107(XX), annex, International Convention on the Elimination of
Racial Discrimination, U.N. Doc. A/6014, 660 U.N.T.S. 195, at 47 (Dec. 21,
1965).
[2].
G.A. Res. 34/180, Convention on the Elimination of All Forms of Discrimination
Against Women, UN Doc. A/34/46, at 193, 1249 U.N.T.S.
13; 19 I.L.M. 33, at 193 (Dec. 21, 1965) [hereinafter CEDAW]. CEDAW has
the dubious distinction of having the highest number of reservations by the
states that are party to it. For the reservations, see U.N. Treaty Database, supra note Error! Bookmark not defined.
[3].
Article 8.2 of the Convention states, “Where a child is illegally deprived of
some or all of the elements of his or her identity, States Parties shall
provide appropriate assistance and protection, with a view to re-establishing
speedily his or her identity.” G.A. Res. 44/25, annex, Convention on the
Rights of the Child, U.N. Doc. A/44/49, 1577 U.N.T.S. 3, at 167 (Nov. 20, 1989).
[4].
G.A. Res. 45/158, annex, Convention on the Protection of the Rights of All
Migrant Workers and Their Families, U.N. Doc. A/45/49, at 262 (Dec. 18, 1990).
[5].
G.A. Res. 61/106, annex II, Convention on the Rights of Persons with
Disabilities, U.N. Doc. A/61/49, 2515 U.N.T.S. 3, at 80 (Dec. 13, 2006).
[6].
Council of Europe, Framework Convention for the Protection of National Minorities,
Feb. 1, 1995, E.T.S. No. 157.
[7].
Council of Europe, The European Charter on Regional or Minority Languages, Nov.
5, 1992, E.T.S. No. 148.
[8].
Org. of Am. States (OAS), Inter-American Convention on the Prevention,
Punishment and Eradication of Violence Against Women, June 9, 1994, No. A-61.
[9].
OAS, Inter-American Convention on the Elimination of All Forms of
Discrimination Against Persons with Disabilities, June 8, 1999, No. A-65,
AG/Res. 1608 (XXIX-O/99).
[10].
Org. of African Unity (OAU), Protocol to the African Charter on Human and
Peoples’ Rights on the Rights of Women in Africa, July 11, 2000, O.A.U. Doc.
No. CAB/LEG/66.6.
[11]. OAU,
African Charter on the Rights and Welfare of the African Child, July 11, 1990,
O.A.U. Doc. No. CAB/LEG/24.9/49.
[12].
G.A. Res. 61/295, annex, Declaration on the Rights of Indigenous Peoples, U.N.
Doc No.A/RES/61/295 (Oct. 2, 2007) [hereinafter UNDRIP]. The Organization
of American States (OAS) draft, after eighteen years of negotiations, was
completed in May 2016 and submitted to the OAS General Assembly for adoption.
[13].
OAS, Inter-American Convention on Protecting the Human Rights of Older Persons,
June 15, 2015, O.A.S.T.S. A-70. The UN General Assembly has already approved the
United Nations Principles for Older Persons, G.A. Res. 46/91, Dec. 16, 1991,
and there are proposals for a convention on the rights of the elderly. For
more on the advocacy, see the work done by Global Alliance for the Rights of
Older People, http://www.rightsofolderpeople.org/ [https://perma.cc/XG6L-5G9Z].
[14].
Human Rights Council, Intergovernmental Working Group on the Rights of Peasants
and Other People Working in Rural Areas, Draft Declaration on the Rights of Peasants
and Other People Working in Rural Areas, UN Doc. A/HRC/WG.15/3/2, art. 5(1)
(Mar. 8, 2016).
[15].
Non-governmental organizations supporting the adoption of texts of the rights
of sexual minorities include: Amnesty International; ARC International; Center
for Women’s Global Leadership; COC Netherlands; Global Rights; Human Rights
Watch; International Committee for IDAHO (the International Day Against
Homophobia); International Gay and Lesbian Human Rights Commission (IGLHRC);
International Lesbian and Gay Association (ILGA); International Service for
Human Rights; Pan Africa ILGA; and Public Services International. On June 17,
2008, the UN Human Rights Council approved a resolution submitted by South
Africa requesting a study on discrimination and sexual orientation. Human
Rights Council Res. 17/19, U.N. Doc. A/HRC/RES/17/19 (June 14, 2011). The
Council adopted a second resolution related to sexual orientation and gender
identity on Sept. 26, 2014, calling for a report from the Office of the High
Commissioner for Human Rights on best practices for combating discrimination
based on sexual orientation or gender identity. Human Rights Council Res.
27/32, U.N. Doc. A/HRC/RES/27/32 (Sept. 24, 2014). See OHCHR, Born Free and Equal: Sexual Orientation and
Gender Identity in Human Rights Law (2012). The 34 member countries of
theOrganization of American Stateshave adopted several resolutions
on the issue of sexual orientation and gender identity. See, e.g.,
O.A.S. G.A. Res. 2721 (XLII-O/12) Human Rights, Sexual Orientation, and Gender
Identity (June 4, 2012).
[16] See Konate v. Burkina Faso, Afr. Court HPR, App. 4/2013, judgment of Dec. 5,
2014.
[17] Decision of the Council of the League of Arab States, Ministers of Foreign
Affairs, session (142), n° 7790, E.A (142) C 3, 07/09/2014, available at
www.laslaportal.org.
[18] ASEAN Declaration on Human Rights, Nov 18, 2013,
http://www.asean.org/news/asean-statement-communiques/item/asean-human-rights-declaration. |
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International
Judicial Monitor
© 2016 – The International Judicial Academy
with assistance
from the American Society of International Law.
Editor: James G. Apple.
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