Applicability to NATO as an international organisation

Notion(s) Filing Case
Decision on Request of NATO for Review - 15.05.2006 MILUTINOVIĆ et al.
(IT-05-87-AR108bis.1)

11. Having found that the Trial Chamber did not err in holding that it could issue a binding Rule 54bis order to NATO, the Appeals Chamber considers that it has competence under Rule 108bis to review the Impugned Decision as it relates to NATO although Rule 108bis only provides for “a State” to request review. The Appeals Chamber recalls its holding above that a State may be interpreted under Article 29 and Rule 54bis to refer to a collective enterprise of States.[1] Furthermore, Rule 54bis (C)(i)(a) requires that a decision under that Rule “shall be subject to review under Rule 108bis.” Finally, because international organizations, like States, are not parties to proceedings before the International Tribunal such that they may appeal a Rule 54bis decision, fairness requires that international organizations must have the same right to seek a review of a Rule 54bis order issued against them as is enjoyed by individual States. (emphasis added).

[1] See supra para. 9.

[2] Rule 54bis (C)(i)(b)  and (ii) allows for a “party” to appeal a Rule 54bis decision. However, under Rule 2, parties are defined as the Prosecutor and the Defence.

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ICTY Rule Rule 108 bis
Notion(s) Filing Case
Decision on Request of NATO for Review - 15.05.2006 MILUTINOVIĆ et al.
(IT-05-87-AR108bis.1)

At paras 6, 8 the Appeals Chamber held:

6. In order to consider NATO’s Request, the Appeals Chamber must find that NATO has standing to bring it before the Appeals Chamber. It is clear under Rule 108bis (A) that it is “a State” that “may […] file a request for review of the [Trial Chamber’s interlocutory] decision by the Appeals Chamber […].” Similar to Rule 108bis, the plain language of Rule 54bis only makes reference to issuance of a binding order to produce documents and information to “a State” who may then seek review of that order under Rule 108bis.[1] NATO, as an international organization formed by an alliance of 26 individual sovereign States joined by treaty,[2] does not meet the definition of a State under the International Tribunal’s Rules.[3] Therefore, in order to consider whether it has competence to review NATO’s Request under Rule 108bis, the Appeals Chamber must first determine, proprio motu, whether the Trial Chamber erred in issuing a Rule 54bis order against NATO as an international organisation.[4]

8. […] The Appeals Chamber recalls that the basis for a Trial Chamber’s binding Rule 54bis order to produce is found in Article 29 and paragraph four of Security Council resolution 827 (1993).[5] On the face of those texts, only “States” have the obligation to cooperate with the International Tribunal in the investigation and prosecution of persons accused of committing serious violations of international humanitarian law[6] and to comply with requests or orders for judicial assistance.[7] However, the Appeals Chamber agrees with the Trial Chamber in Simić that “States” refers to all Member States of the United Nations, whether acting individually or collectively and, under a “purposive construction” of the Statute of the International Tribunal, Article 29 applies to “collective enterprises undertaken by States” such as an international organization or its competent organ.[8] It is the general rule in the jurisprudence of the International Tribunal that the rules of treaty interpretation in international law apply to the Statute of the International Tribunal.[9] Article 31(1) of the Vienna Convention on the Law of Treaties[10] provides that “a treaty shall be interpreted in good faith in accordance with the ordinary meaning to be given to the terms of the treaty in their context and in the light of its object and purpose.” The Appeals Chamber further agrees with the Simić Trial Chamber that “[t]he mere fact that the text of Article 29 is confined to States and omits reference to other collective enterprises of States does not mean it was intended that the International Tribunal should not also benefit from the assistance of States acting through such enterprises.”[11] Indeed, the Appeals Chamber recalls that “[i]n the final analysis, the International Tribunal may discharge its functions only if it can count on the bona fide assistance and cooperation”[12] of States and the purpose of Article 29 is to require the full cooperation of States with the International Tribunal in fulfilling its crucial mandate. To interpret Article 29 in such a way that the International Tribunal would be prevented from obtaining information or documents from a State when it was acting through an international organization, would undermine the essence of the International Tribunal’s functions. Thus, the Appeals Chamber finds that the International Tribunal’s Article 29 power to issue binding orders is as applicable to international organizations as collective enterprises of States, as it is to individual Member States.(emphasis added).

[1] See Rule 54bis (C)(i)(a).

[2] See The North Atlantic Treaty, which entered into force on 24 August 1949.

[3] Rule 2 of the Rules defines a State as: “(i) a State Member or non-Member of the United Nations; (ii) an entity recognized by the constitution of Bosnia and Herzegovina, namely, the Federation of Bosnia and Herzegovina and the Republic Srpska; or (iii) a self-proclaimed entity de facto exercising governmental functions, whether recognized as a State or not”.

[4] NATO makes no submission with regard to this issue; it merely states that it makes the Request “[a]ssuming without conceding, that Article 29 of the ICTY Statute applies to an international organization.” Request, p. 2.

[5] Prosecutor v. Blaškić, Case No. IT-95-14-AR108bis, Judgement on the Request of the Republic of Croatia for Review of the Decision of Trial Chamber II of 18 July 1997, 29 October 1997 (“Blaškić Judgement on Review Request”), para. 26. The Appeals Chamber notes that the content for a binding order to produce under Article 29 as laid out in this decision was later codified in Rule 54bis. The binding force for such an order derives from Article 25 and Chapter VII of the Charter of the United Nations, which entered into force on 24 October 1945 (“UN Charter”). Article 25 states that “[t]he Members of the United Nations agree to accept and carry out the decisions of the Security Council in accordance with the present Charter.” Article 39, Chapter VII of the UN Charter provides that “[t]he Security Council shall determine the existence of any threat to the peace, breach of the peace, or act of aggression and shall […] decide what measures shall be taken in accordance with Articles 41 [not requiring the use of force] and 42 [requiring the use of force], to maintain or restore international peace and security.” This International Tribunal was established as a non-forceful measure for restoring international peace and security by decision of the Security Council under Chapter VII of the UN Charter.

[6] See Article 29(1).

[7] See Article 29(2). UN Sec. Res. 827 (1993) provides: “Acting under Chapter VII of the Charter of the United Nations, 4. Decides also that all States shall cooperate fully with the International Tribunal and its organs […] and that consequently all States shall take any measures necessary […] to implement the provisions of the present resolution and the Statute, including the obligation of States to comply with requests for assistance or orders issued by a Trial Chamber under Article 29 of the Statute.”

[8] Simić Decision, paras. 46, 48.

[9] See, e.g., Prosecutor v. Tadić, Case No. IT-94-1-A, Judgement, 15 July 1999, paras. 282-286.

[10] Signed on 23 May 1969 and entered into force on 27 January 1980.

[11] Simić Decision, para. 47.

[12] Blaškić Judgement on Review Request, para. 31.

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ICTR Statute Article 28 ICTY Statute Article 29 ICTY Rule Rule 54 bis
Notion(s) Filing Case
Decision on Request of NATO for Review - 15.05.2006 MILUTINOVIĆ et al.
(IT-05-87-AR108bis.1)

11. Having found that the Trial Chamber did not err in holding that it could issue a binding Rule 54bis order to NATO, the Appeals Chamber considers that it has competence under Rule 108bis to review the Impugned Decision as it relates to NATO although Rule 108bis only provides for “a State” to request review. The Appeals Chamber recalls its holding above that a State may be interpreted under Article 29 and Rule 54bis to refer to a collective enterprise of States.[1] Furthermore, Rule 54bis (C)(i)(a) requires that a decision under that Rule “shall be subject to review under Rule 108bis.” Finally, because international organizations, like States, are not parties to proceedings before the International Tribunal such that they may appeal a Rule 54bis decision, fairness requires that international organizations must have the same right to seek a review of a Rule 54bis order issued against them as is enjoyed by individual States. (emphasis added).

[1] See supra para. 9.

[2] Rule 54bis (C)(i)(b)  and (ii) allows for a “party” to appeal a Rule 54bis decision. However, under Rule 2, parties are defined as the Prosecutor and the Defence.

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ICTY Rule Rule 108 bis