Category Archives: Law: International Law

Cecil Turner Has A Point

In a comment to my earlier item, The Disappeared, Cecil Turner asks why I called the 'ghost' detainee in question a 'confirmed POW'. And, re-reading the article I have to say that he's basically right. The New York Times didn't tell us much about the conditions under which the unnamed prisoner was captured, or what his citizenship was, so it seems I jumped to conclusions. And, in fact, I just found this recent Reuters article, Rumsfeld Acknowledges Hiding Iraqi Prisoner which says the detainee is an Iraqi civilian, not a POW.

That doesn't change the bottom line as much as you might think, however. As a civilian internee, he has rights too, under the Fourth Geneva convention, which also don't appear to have been observed. The best case for the US might be Art. 5 of 4th Geneva:

Where in the territory of a Party to the conflict, the latter is satisfied that an individual protected person is definitely suspected of or engaged in activities hostile to the security of the State, such individual person shall not be entitled to claim such rights and privileges under the present Convention as would, if exercised in the favour of such individual person, be prejudicial to the security of such State.

Where in occupied territory an individual protected person is detained as a spy or saboteur, or as a person under definite suspicion of activity hostile to the security of the Occupying Power, such person shall, in those cases where absolute military security so requires, be regarded as having forfeited rights of communication under the present Convention.

In each case, such persons shall nevertheless be treated with humanity and, in case of trial, shall not be deprived of the rights of fair and regular trial prescribed by the present Convention. They shall also be granted the full rights and privileges of a protected person under the present Convention at the earliest date consistent with security of State or Occupying Power as case may be.

While this might justify stopping letters home, it doesn't justify hiding the detainee's existence from the Red Cross, or failing to give him an ID number, or deporting him (cf. 4th Geneva, Art. 76: “Art. 76. Protected persons accused of offences shall be detained in the occupied country.”). Also, it would be surprising to hear the US argue that the security situation in Iraq, which we're usually told is so greatly improved, remains so bad as that the security situation would be undermined by letting the Red Cross visit him. Art. 143 says, “Such visits may not be prohibited except for reasons of imperative military necessity, and then only as an exceptional and temporary measure. Their duration and frequency shall not be restricted.” — have things been that bad all along?.

Of course, for its purposes the administration may have put him into the black hole category of “unlawful combatant,” but I personally do not accept that this category can be used to remove nationals of Geneva Convention signatory states from the reach of those very encompassing agreements on the unilateral say-so of an administration official. I also remain very highly dubious that this can be done even after a military hearing; in any event in this case there appears to have been no such hearing, not to mention none of the follow-on hearings that might be required if the detainee is classed as civilian being held in special circumstances out of extreme military necessity.

I simply do not accept the assertion that membership, much less suspected or reputed membership, in an international criminal organization like al Qaeda, negates a detainees citizenship and its privileges. And if you think about it, that's not a precedent we'd like to set for our enemies to use against us.

[Several other commentators have asked why in my original post I called this a 'technical' war crime. That's not a term of art; I just meant by that to suggest that although I believe this conduct is seriously wrong, and violates the US's international obligations, and might in theory be classed as a war crime, it doesn't seem to me personally be as evil as, say, raping and killing and frankly it's hard to imagine that it would form the centerpiece of any very hypothetical international prosecution if the subject emerges unhurt. In the highly unlikely event that any of the US's conduct towards its prisoners ever were to come before an international body — a procedure limited for the gravest and most serious offenses — it will be because of a substantial pattern of serious violence, injuries, or deaths, not just what is reported so far in the case of this particular 'ghost detainee'.]

Posted in Iraq Atrocities, Law: International Law | 8 Comments

The Disappeared

Today's bombshell is in the New York Times, Prison Abuse: Rumsfeld Issued an Order to Hide Detainee in Iraq.

Let's count the shockers (we can still be shocked, can't we?) and estimate the fallout.

Shockers:

1. Rumsfeld (at the CIA's request—we'll get to that), ordered what seems at least a technical war crime: putting a confirmed POW in solitary and hiding him from the Red Cross. [Update (6/17): Oops. Not a confirmed POW, a civilian detainee — see Cecil Turner Has A Point.]

2. It's not a unique case; there is/was a class of “ghost detainees”—disappeared people. This from a country that (with some justice) tied itself up in knots over the fate of its own POWs and MIAs in Vietnam.

3. In addition to being immoral (we knew that), our leaders are not just partially (we knew that) but totally incompetent: having put this guy on ice because he was too important to expose to the Red Cross and so desperately needed to be softened up, the system forgot all about him:

Seven months later, however, the detainee – a reputed senior officer of Ansar al-Islam, a group the United States has linked to Al Qaeda and blames for some attacks in Iraq – is still languishing at the prison but has only been questioned once while in detention, in what government officials acknowledged was an extraordinary lapse.

“Once he was placed in military custody, people lost track of him,” a senior intelligence official conceded Wednesday night. “The normal review processes that would keep track of him didn't.”

The detainee was described by the official as someone “who was actively planning operations specifically targeting U.S. forces and interests both inside and outside of Iraq.”

But once he was placed into custody at Camp Cropper, where about 100 detainees deemed to have the highest intelligence value are held, he received only one cursory arrival interrogation from military officers and was never again questioned by any other military or intelligence officers, according to Pentagon and intelligence officials.

Things we know already, and that this incident reminds us:

4. Abu Ghraib may be the tip of an iceberg. There are a lot of other military prisons to worry about both in and out of Iraq. One is Camp Cropper, at or near the Baghdad Airport.

5. Even worse is a network of secret CIA prisons in various undisclosed locations, run by people who take the view that none of the rules apply to them. We have no idea how many of these prisons exist, how many prisoners they hold or have held, what the casualty rate is, and whether it's a one-way trip or if people are ever released from them.

Fallout

I. You would think that Rumsfeld would have to resign unless somehow they can make Tenet the fall guy for this. But I am dubious. Yes, this is much more direct and personal authorization — a real smoking gun — than what has come out so far in the torture cases, although there's serious circumstantial evidence accumulating there too. On the other hand, while putting 'ghost' detainees in secret solitary is illegal, and technically a war crime, the effect on the detainees not nearly as horrible as what seems to have happened at Abu Ghraib.

II. People like me, who have been highly dubious about the US acceding to the jurisdiction of the International Criminal Court due to the real and troubling encroachment on our traditional conception of national sovereignty are really going to have to think long and hard about changing sides on this one, or at least accepting jurisdiction with regards to some of our treaty obligations. The last few months argue strongly that the US cannot always be relied on to observe its international law obligations as much as I would have thought and hoped.

III. At some point some of this stuff has to stick to Rumsfeld's boss. Are we there yet?

Posted in Iraq Atrocities, Law: International Law | 17 Comments

OLC’s Aug. 1, 2002 Torture Memo (“the Bybee Memo”)

The Washington Post has placed online the full text of an August 1, 2002 memo from the Justice Department's Office of Legal Counsel (OLC) to White House Legal Counsel Alberto R. Gonzales.

A few words of context before substance. The OLC is sometimes called “the Attorney General's Lawyer”. It's an elite bureau in the Justice Dept. staffed by very very intelligent and highly credentialed people. Its primary function is to give opinions on matters of constitutionality regarding interdepartmental and inter-branch relations, and to opine on the constitutionality of pending legislation. By all accounts working at OLC is one of the most interesting jobs in government if you are interested in constitutional law or the working of government.

In August 2002, the head of the OLC was Jay Bybee, now a sitting judge on the 9th Circuit. His signature appears on page 46 of this memo.

White House Counsel Alberto Gonzales, who requested this memo, is not the head of the OLC. The White House Counsel is part of the Office of the President, and the Counsel is the President's staff lawyer, just as the Attorney General is the President's institutional lawyer; neither of these people however is the President's personal lawyer.

OK. On to the substance.

The memo is about what limits on the use of force (“standards of permissible conduct”) for interrogations conducted “abroad” are found in the Convention Against Torture and Other Cruel, Inhuman and Degrading Treatment or Punishment ( Torture Convention) “as implemented” by 18 USC §§ 2340-2340A (the Torture statute).

The memo concludes that the restrictions are very limited — that only acts inflicting and “specifically intended to inflict severe pain or suffering”, whether mental or physical, are prohibited. Allowed are severe mental pain not intended to have lasting effects (pity if they do…), and physical pain less than that which acompanies “serious physical injury such as death or organ failure” (p. 46). Having opined that some cruel, inhuman, or degrading acts are not forbidden, only those that are “extreme acts” (committed on purpose), the memo moves on to “examine defenses” that could be asserted to “negate any claims that certain interrogation methods violate the statute.”

  • This is not a draft, but it's not an action document either. It's legal advice to the Counselor for the President. The action document was Gonzales's memo to Bush.
  • This OLC document is a legalistic, logic-chopping brief for the torturer. Its entire thrust is justifying maximal pain.
  • Nowhere do the authors say “but this would be wrong”.
  • This memo also has a full dose of the royalist vision of the Presidency that informs the Draft Walker memo. In the views of the author(s), there's basically nothing Congress can do to constrain the President's exercise of the war power. The Geneva Conventions are, by inevitable implications, not binding on the President, nor is any other international agreement if it impedes the war effort. I'm sure our allies will be just thrilled to hear that. And, although the memo nowhere treats this issue, presumably, also, the same applies in reverse, and our adversaries should feel unconstrained by any treaties against poison gas, torture, land mines, or anything else? Or is ignoring treaties a unique prerogative of the USA?

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Posted in Guantanamo, Iraq Atrocities, Law: International Law | 127 Comments

Apologia Pro Tormento: Analyzing the First 56 Pages of the Walker Working Group Report (aka the Torture Memo)

I have read a redacted copy of the first 56 pages of the Torture Memo (alternate source). The memo — or at least the approximately half of it we have — sets out a view as to how to make legal justifications for the torture of detainees unilaterally labeled by the government as “unlawful combatants”, including (but not limited to?) al Qaida and Taliban detainees in Guantanamo.

Here are my initial comments on some of the main points, especially those regarding Presidential powers and international law. I've concentrated on those parts because those are the relevant issues I think I know the most about; in contrast, I say little here about the direct criminal law issues. I wrote this in a hurry, so please treat these as tentative remarks. I look forward to discussion with other readers, and will post amendments and corrections when they are brought to my attention.

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Posted in Guantanamo, Law: Constitutional Law, Law: International Law, Torture | 120 Comments

Alberto Gonzales Memo: Paving the Way for War Crimes?

MSNBC has the full text of the memo by White House Counsel Alberto Gonzales. Aside from its fundamental callousness and lack of moral outrage, there are odd things about it.

Gonzales rejects, without discussion, the concept that if armed people are not entitled to POW status they might still benefit from Geneva III, protecting civilians. Or might be subject to basic norms of decency and due process arising from the Constitution which creates the powers he and his boss exercise.

Even stranger is the odd discussion of the War Crimes statute, 18 U.S.C § 2441. Gonzales opines that one good reason for NOT treating detainees as POWs is that not giving them POW status lessens the chance of subsequent prosecutions against their US captors under the war crimes statute.

Why, you might ask, worry about prosecution at all? Is Gonzales aware of a plan to mistreat the detainees? It sure looks that way.

Gonzales's first argument against treating al Queda or Taliban fighters as POWs is that doing so would increase the danger of prosecution for “vague” offenses prohibited by the Geneva convention, namely “outrages upon personal dignity” and “inhuman treatment”. Reading those lines today, in the fullness of hindsight, it is very hard to escape the suspicion that Gonzales knew or suspected the sexual humiliation planned for Arab detainees.

Gonzales's second argument against treating al Queda or Taliban fighters as POWs is that”it is difficult to predict the needs and circumstances that could arise in the course of the war on terrorism.” (Reading that today, it seems to mean “we might need to torture people”.)

Gonzales's third reason for treating is the legally weirdest of all:

“it is difficult to predict the motives of prosecutors and independent counsels who may in the future decide to pursue unwarranted charges based on Section 2441. Your determination would create a solid basis in law that Section 2441 does not apply, which would create a solid defense to any future prosecutions.”

I'm scratching my head trying to figure out what this means, especially as Gonzales has a reputation for being pretty smart.

  • Does Gonzales think that the “just following orders” defense will work? I hope not.
  • Does Gonzales think that the courts would accept the President's determination on this as determinative? That's not totally implausible: a court might see the President's official determination as somehow being a political question and hence not reviewable. Except that I don't think any court would do this: the point of the Geneva conventions is to bring decisions like this into law, out of politics. Suppose Bush had ruled that unformed French troops were outside the convention — would that be unreviewable? Unlikely.
  • So, on the assumption that Gonzales is smart, I'm puzzled. Does Gonzales have a bad staff?1 Of course, it could be that Gonzales was making a political not a legal judgement: if the President OK'd it, prosecutors are less likely to prosecute. But to make this the centerpiece of your argument?

The more I look at this thing, the worse it smells.

1 It cannot be that Gonzales has some crafty theory of qualified immunity up his sleeve. Qualified immunity protects a government official from civil liability so long as his/her “conduct does not violate clearly established statutory or constitutional rights of which a reasonable person would have known” i.e. blocks lawsuits when the government actor could have had a reasonable belief that the act was lawful. Trouble is, the only immunity from criminal prosecution is that provided by a pardon. And § 2441 is a criminal not a civil statute. And the only part of §2441 (quoted below) that turns on intent at all is the part that refers to a person who “willfully kills or causes serious injury to civilians” in violation of the Protocol on Prohibitions or Restrictions on the Use of Mines, Booby-Traps and Other Device.

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Posted in Law: Criminal Law, Law: International Law | 7 Comments

The Berg Detention: Legal Issues

Nicholas Berg's family says that he was in US custody for all or part of the period before his release, a release followed almost immediately by his capture by Al Qaeda or someone equally vicious. The US government's denial of this claim is one of the weirdest I've ever heard. The US admits:

  • “the FBI asked the police to keep Berg in custody while its agents reviewed the case”
  • FBI agents met with him repeatedly while he was in custody
  • Berg was freed the day after his parents filed suit claiming he was being held by the US

All together, this hardly paints a picture of US authorities with their hands off. Nevertheless, the US maintains that the Iraqi police were the ones responsible for Berg's detention. But here's the missing element: why is that relevant?

The United States plans to 'return' sovereignty to Iraq on June 30 (although whether this legal action will include any real power is obviously a hotly debated topic in DC right now). It follows that Iraq is not currently sovereign; that sovereignty is being exercised by the occupiers, who might be described as “a coalition of forces” or as “the United States”.

Currently the Iraqi police are an agent of the sovereign power in Iraq. And that's the US (or the 'Coalition' of which the US is the driving force). So either way the US is ultimately responsible, isn't it?

Posted in Law: International Law | 1 Comment