(Delighted to publish the latest contribution to IntLawGrrls by Patricia O'Brien, Under-Secretary-General for Legal Affairs and United Nations Legal Counsel – her October 20 Keynote Address to the American Society of International Law Midyear Meeting, delivered, as shown above, at the University of Georgia School of Law in Athens)
It is a great pleasure to be here today and to share with you some insights and reflections as Legal Counsel at the United Nations, and on some issues which are the focus of our work in the
United Nations Office of Legal Affairs. I am honoured and grateful for the opportunity to address you this afternoon.
I will speak about three areas:
► The Rule of Law at the UN;
► International criminal justice and accountability; and
► The concept of Responsibility to Protect and the recent practice on this subject.
Rule of Law
Since joining the Organisation, it has become clear to me that international law – and the role of the UN as its champion – is central to the work of the UN and to the Secretary-General and his team.
Before I give you a sense of the centrality which I found, allow me to mention the
Charter, which is of course the fundamental legal basis and primary law of the UN. The UN was established not only to save succeeding generations from the scourge of war and to reaffirm faith in fundamental human rights, but, as the
Preamble also provides,
'to establish conditions under which justice and respect for the obligations arising from treaties and other sources of international law can be maintained'.
Over the years, the UN has seen periods of great advancement in international law and jurisprudence. Addressing the
American Society of International Law, it is appropriate to recall the key role played by representatives of the United States in the promotion of the rule of law on the international plane. The
Universal Declaration of Human Rights, adopted in 1948 by the General Assembly, drew upon the foundational instruments at
the core of the rule of law at the domestic level: the Magna Carta, the French Declaration of the Rights of Man and the Citizen, and, of course, the American Bill of Rights.
Eleanor Roosevelt’s tireless diplomatic efforts were instrumental in articulating the international community’s clear and uncompromising declaration of the rights to which all human beings are entitled. Mrs. Roosevelt
stated to the General Assembly at the adoption of the UDHR:
'We stand today at the threshold of a great event both in the life of the United Nations and in the life of mankind. This declaration may well become the international Magna Carta for all men everywhere.'
The rule of law lies at the heart of the Universal Declaration of Human Rights. Its
Preamble notes that
'it is essential, if man is not to be compelled to have recourse … to rebellion against tyranny and oppression, that human rights should be protected by the rule of law.'
Article 7 affirms the equal right of every human being, without discrimination, to have recourse to the law’s protection. Indeed, the rule of law is the bedrock upon which all of the rights enumerated in the UDHR rely for their protection and enforcement.
We live in an era in which international law is no longer only the business of international courts and institutions. In the decades following the UDHR, States have entered into numerous treaties upon which individuals can directly rely to enforce their rights: the
European Convention on Human Rights, the
International Covenant on Civil and Political Rights, and the
International Covenant on Economic, Social And Cultural Rights to name a few. That States have binding obligations under such instruments has led to a greater role for international law before national and regional courts.
As Lord Bingham said in his superb book on
The Rule of Law,
'International law is a body of law which complements national laws of individual states, and is in no way antagonistic to them; it is not a thing apart; it rests on similar principles and pursues similar ends.'
In many ways, the rule of law at the international level is the domestic rule of law writ large. It addresses the exercise of power and the relationship between the individual and the State. It of course goes further and regulates the relationship of States with each other.
Observance of the Rule of Law is just as important on the international plane as on the national. To quote from the
2005 SG’s report, In Larger Freedom,
'Every nation that proclaims the rule of law at home must respect it abroad and every nation that insists on it abroad must enforce it at home.'
Professor Dicey is credited for coining the expression “the rule of law” in 1885. But as Lord Bingham noted, Dicey did not apply his paint to a blank canvas. The qualities embodied in the notion of rule of law have been propounded for centuries and go back to antiquity. I will take the liberty of quoting
Plato:
'Where the law is subject to some other authority and has none of its own, the collapse of the state, in my view, is not far off, but if the law is the master of the governments and the government its slave, then the situation is full of promise and men enjoy all the blessings, all the gods shower on a state.'
What vision do we in the UN have with respect to the implementation of international law for the UN as a global actor?
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| Under-Secretary-General O'Brien talking with law students |
In essence, it is very simple. It comes down to promoting respect for the rule of law at the international level and by the UN itself as an actor.
For the United Nations, the rule of law refers to a principle of governance according to which all persons, institutions and entities, public and private, including the State itself, are accountable to laws that are publicly promulgated, equally enforced and independently adjudicated, and which are consistent with international human rights norms and standards. This principle underpins each of the issues which I will discuss today. The enormous strides taken in the field of international criminal justice in the last 20 years have been driven by the desire for accountability. And, proceedings in which Heads of State have been held accountable for serious international crimes illustrate the fundamental tenet of the rule of law that no one is above the law. The Responsibility to Protect (R2P), like the Universal Declaration of Human Rights, articulates States’ moral and political responsibility to protect the rights of all of their citizens.
My Office plays a key role in promoting the rule of law at the national and international levels. Establishing respect for the rule of law is fundamental and essential for a number of reasons, including: