1. Nationality or Active Personality Principle of Jurisdiction
13 The nationality principle confers on States the power to subject their own nationals to judicial and legislative criminal jurisdiction for crimes they have committed abroad. The mere fact of nationality does not give rise to this type of jurisdiction in respect of all crimes committed abroad; rather, it has to be preceded either by particular or general criminal legislation, otherwise it may be deemed to offend the principle against the application of retroactive legislation (Nulla poena nullum crimen sine lege). The historic origins of nationality jurisdiction can be traced to the prosecution of the crime of treason, which is quintessentially predicated on national allegiance and which is broken when the vow of allegiance is violated. Some courts have held that treason persists even where the assumption of nationality was made possible through fraudulent means (Joyce v Director of Public Prosecutions UKHL [1946] AC 347, 359–60).
14 The granting of nationality itself is a matter that befalls the sovereignty of each State, albeit the effects (and possible conflicts arising) from the conferral of nationality in international relations are regulated by international law (Nationality Cases before International Courts and Tribunals; Nottebohm Case [Liechtenstein v Guatemala] [Second Phase] [1955] ICJ Rep 4, 20). Thus, it is very likely that a person with dual or multiple nationality may be indicted for an extraterritorial offence in one of his countries of nationality but not in another. There exists no general rule for resolving such conflicts and moreover one should not expect the non-prosecuting State (of which the accused is a national) to extradite the accused to the requested State because this would violate the nulla poena principle.
15 In practice, civil law States have been most proactive in exercising nationality-based jurisdiction, principally because traditionally they have been the most ardent opponents against extraditing their own nationals. As a result, they were compelled to prosecute every such crime committed abroad. This attitude has now changed to some degree, at least among European States, as a result of the European Arrest Warrant (Council Framework Decision 2002/584/JHA [2002] OJ L190/1), which obliges Member States to extradite their own nationals in respect of a mandatory list of offences. This led some States to amend their constitutions in order to accommodate the European Arrest Warrant (General Attorney of the Republic of Cyprus v Konstantinou [Supreme Court of Cyprus] [7 November 2005] [2007] 44 CMLR 1515), or interpret their constitutions as being compatible with the extradition of nationals (Avis du Conseil d’État No 368-282 [French Council of State] [26 September 2002]).
16 Increasingly, the contemporary trend in justifying the exercise of nationality jurisdiction by developed States is the avoidance of impunity in respect of certain countries where particular behaviour is either not qualified as criminal, or even if it is the authorities generally fail to prosecute the offenders. This is certainly true with regard to drugs and sexual offences, particularly against children, such as the 2003 United Kingdom’s Sexual Offences Act (at section 72).
2. Passive Personality Principle of Jurisdiction
17 This principle focuses on the nationality of the victims and entails the exercise of jurisdiction by the victim’s country of nationality. It is generally considered the weakest of all jurisdictional links with the prosecuting State, particularly in those cases where the territorial State is willing to prosecute the accused. In practice it was rarely utilized prior to the advent of contemporary terrorism and the case that is usually cited in respect of its condemnation is the Cutting incident (Moore vol 2, 228–42) in which a US citizen was arrested and prosecuted in Mexico in respect of a libel charge against a Mexican national, committed in the form of a book. The book, for which offence was taken, had been authored wholly in the US and the case was resolved through diplomatic means with the US vehemently opposing this form of criminal jurisdiction.
18 Ever since the eruption of terrorist activities directly related to the Palestinian struggle (Palestine) and later to militant Islam, even the most fervent opponents of passive personality jurisdiction, particularly the US, began to apply it extensively. Given that sophisticated security in the territory of developed nations initially precluded the launching of terrorist attacks thereon, terrorist groups thereafter targeted US and other Western nationals abroad. The victimization of its nationals as a matter of terrorist policy led US lawmakers in the aftermath of the Achille Lauro Affair (1985) (Palestine Liberation Organization [PLO]) to adopt the Omnibus Diplomatic Security and Antiterrorism Act of 1986, and later others, by which it firmly set out passive personality jurisdiction, not only in terms of law and prosecution, but more importantly as a matter of extraterritorial enforcement (United States v Yunis [1988] 903).
19 This principle of jurisdiction is now a consistent and permanent feature of the vast majority of general international criminal law treaties, besides anti-terrorist treaties, such as Art. 5 (1) (c) of 1984 Convention against Torture and Other Cruel, Inhuman or Degrading Treatment or Punishment (‘1984 UN Torture Convention’; Torture, Prohibition Of). Moreover, it was the principal legal basis for the Spanish extradition request to the United Kingdom in respect of ex-President Pinochet of Chile (Pinochet Cases; eg Pinochet Ugarte [Appeal from the Divisional Court of the Queen’s Bench Division] [1998] 3 WLR 1456, 1463). Given its prevalence in contemporary international relations it should not be considered merely as a subsidiary form of jurisdiction. This result has been achieved because the inability of States generally to respond to terrorist crimes taking place on their territory against aliens, coupled with the rapid movement of the culprits across international frontiers before the local authorities have had a chance to react and investigate, renders territorial jurisdiction no more useful than passive personality jurisdiction. Under such circumstances, the territorial sovereignty of the locus delicti commissi (the country where the offence took place) cannot claim to have been violated.
3. Protective Principle of Jurisdiction
20 The protective principle of jurisdiction confers on a State power to prosecute offenders and enforce its laws in respect of extraterritorial acts that threaten or harm its national security interests (International Criminal Jurisdiction, Protective Principle). This type of jurisdiction allows for a broad unilateral construction of national interests. This varies from destruction of critical infrastructure, including military and diplomatic missions located abroad (destruction of the USS Cole by terrorists in Yemen) and it may also involve extraterritorial acts of espionage against the prosecuting country’s national interests (In Re Urios Cour de Cassation [French Court of Cassation] [15 January 1920] [1919–1922] 1 AnnDig 107; Spies), or those of one of its allies (Re Van den Plas Cour de cassation [French Court of Cassation] [28 April 1955] (1955) 22 ILR 205, 207). There is no general consensus as to the location where the harmful effects must be targeted, felt, or perpetrated (in the case of continuing crimes or crimes in motion) before the State concerned can exercise enforcement or other jurisdiction. Some courts have held that the threat can take place on both home soil and abroad (Nusselein v Belgium Cour de Cassation [Belgian Court of Cassation] [27 February 1950] [1950] 17 ILR 136). It is reasonable for countries with extensive coastlines and in fear of waves of illegal immigration, smuggling, and trafficking to enforce their relevant laws beyond the outer edge of their contiguous zone, or against their embassies abroad (United States v Pizzarusso [1968]; United States v Bin Laden [2000] 197; Taliban). The State of Israel even invoked the protective principle, among others, in order to justify its abduction (Abduction, Transboundary) and prosecution of Eichmann, at a time when it did not possess any statehood (States, Fundamental Rights and Duties; Attorney-General of the Government of Israel v Eichmann [1961] para 30; Eichmann Case).
21 Although the legislative and judicial jurisdictional elements of the protective principle are not in conflict with general international law, enforcement jurisdiction is evidently problematic. The bombing of US embassies in Kenya and Tanzania in the late 1990s provoked military action by the US against alleged Al Qaeda targets in different parts of the world. The regulation of military action under such circumstances is governed by the United Nations Charter’s provisions relating to the use of force (Use of Force, Prohibition Of) and should not be dictated by the unilateral designation and application of the protective principle. Certainly, the best avenue for exercising the protective principle without recourse to armed force is through mutual legal assistance channels.
4. Universal Jurisdiction
22 The principle of universal jurisdiction is said to apply to two categories of offences: (a) certain crimes that are universally considered heinous and repugnant; and (b) crimes committed in locations that are beyond the exclusive authority of any State. Proponents of the principle claim that any and all countries in the world should possess legislative, judicial, and enforcement jurisdiction over (a) and (b) above, irrespective of any link between themselves and the crime, the accused, or the victim. It is crucial, therefore, and evident that the establishment of universal jurisdiction can only encompass a very limited number of international crimes. The next logical question is how one may identify the range of crimes subject to universal jurisdiction. Two schools have generally made claims over this sensitive matter. The conservative school has relied on treaty-based universal jurisdiction and has thereafter sought either concrete evidence of State practice that justifies expansion by means of customary international law, or has relied on the Lotus case principle, according to which the lack of prohibition in relevant treaties regarding the exercise of a particular jurisdiction entails its acceptance. The expansionist school, reflected best in the so-called ‘Princeton Principles of Universal Jurisdiction’, espouses the view that universal jurisdiction has been conferred upon the majority of international crimes by virtue of rapid developments in State practice since the early 1990s.
23 Two crimes are clearly subject to treaty-based universal jurisdiction. The first concerns grave breaches of the provisions of the Geneva Conventions I-IV (1949) (War Crimes). While grave breaches are clearly susceptible to the exercise of universal jurisdiction by any State, war crimes that do not qualify also as grave breaches do not attract universal jurisdiction, at least under the Geneva Conventions. The other treaty-based international offence that is expressly subject to universal jurisdiction is piracy iure gentium, on the basis of Art 105 UN Convention on the Law of the Sea. Both of these offences have been subjected to universal jurisdiction at least since the 19th century under customary international law, each on a different theoretical basis. Flag State jurisdiction and the existence of stateless pirate vessels on the high seas that posed an immediate menace to the merchant vessels of all nations clearly rendered the relevant jurisdictional avenues redundant. Hence, the subjection of piracy iure gentium to universal jurisdiction was justified by virtue of the location wherein it is perpetrated, the high seas, which is not subject to the criminal jurisdiction of any State. On the other hand, grave breaches are not perpetrated on locations beyond the jurisdictional reach of States; however, their heinous and repugnant nature sufficed in order for the international community to consent to clad them with universal jurisdiction.
24 Besides grave breaches it is true that there are also other crimes that are equally, if not more, heinous and repugnant, but which are not expressly subject to treaty-based universal jurisdiction. For some this is because no relevant global convention exists, as is the case with crimes against humanity, whereas for others, such as torture, the adoption of the 1984 UN Torture Convention in the midst of the Cold War (1947–91) rendered a possible consensus on universal jurisdiction on such a sensitive issue impossible to reach. Nonetheless, there are two ways of justifying the exercise of universal jurisdiction over these international crimes, absent an express provision to this effect in the treaties in which they are contained.
25 First, none of the relevant conventions expressly prohibit the exercise of universal jurisdiction. In fact, they advocate significantly broad jurisdictional bases for Member States. Art 5 (3) of the 1984 UN Torture Convention stipulates that it ‘does not exclude any criminal jurisdiction exercised in accordance with internal law’. This means that if a Member State has adopted domestic legislation subjecting extraterritorial acts of torture to universal jurisdiction, this would be wholly consistent with the other jurisdictional bases contained in the 1984 UN Torture Convention. This observation reinforces the Lotus principle that any jurisdiction is permissible, so long as it is not expressly rejected by treaty or custom and to the extent that it does not clash with a pre-existing rule of international law. In this manner, treaty-based universality may arise not by virtue of express but implied permissibility. The International Court of Justice (ICJ) has noted that the 1948 Convention on the Prevention and Punishment of the Crime of Genocide only obliges States to exercise territorial criminal jurisdiction. Nonetheless, while it does not impose other types of jurisdiction, it does not prohibit them either (Application of the Convention on the Prevention and Punishment of the Crime of Genocide Case [Bosnia and Herzegovina v Serbia and Montenegro] [Judgment] [2007] ICJ Rep 43, para. 442; Yugoslavia, Cases before the ICJ).
26 Secondly, an international crime may be subjected to universal jurisdiction by means of customary international law. In practice, our ascertainment of customary universal jurisdiction is derived from judicial determinations. For example, in Fédération National de Déportes et Internés Résistans et Patriotes and Others v Barbie (Cour de Cassation [French Court of Cassation] [20 December 1985] 78 ILR 125, 130) the Criminal Chamber of the French Court of Cassation held that crimes against humanity are amenable to universal jurisdiction. In reality, there is very little concrete practice in the sense of national prosecutions under the principle of universal jurisdiction. This fact alone is certainly not determinative of the veracity and evolution of the principle itself because of logistical considerations relating to its applications by national authorities, but it is reason enough to avoid sweeping generalizations (Arrest Warrant Case [Democratic Republic of the Congo v Belgium] [Judgment] [Dissenting Opinion of Judge Guillaume] [2002] ICJ Rep 3, paras 5–12 which takes a very restrictive view). The customary nature of universal jurisdiction over particular international crimes should best be judged on the basis of opinio iuris, rather than usus, given that States are able to consent and reject the exercise of this type of jurisdiction by other national judicial authorities. In any event, the prosecution of international crimes by the ICTY, ICTR, and the ICC is not evidence of State practice with regard to offences perceived to fall under customary universal jurisdiction, because these are not national courts.
27 By reason of logistical necessity, at least, there exists no compulsion under international law on States to exercise universal jurisdiction, nor is such jurisdiction granted ipso facto in respect of all heinous crimes (Jones v Ministry of Interior Al-Mamlaka Al-Arabiya AS Saudiya [the Kingdom of Saudi Arabia] [2006] UKHL 26 per Lord Bingham, para 27).
28 Despite the limited concrete practice, it is worthwhile to attempt to discern those crimes that are subject to universal jurisdiction, other than grave breaches and piracy, by reason of a broad international consensus. This is certainly true of crimes against humanity and genocide, and there seems to be an emerging, albeit not yet crystallized, rule on torture. Some courts have taken the view that the crime of aggression is subject to universal jurisdiction (R v Jones [Margaret] UKHL [2007] 1 AC 136), and whatever the merits of that decision there is certainly no consensus that all acts of terrorism produce the same effect. As we have already stated, there is no specific rule that prevents States from assuming universal jurisdiction over these and other international offences, so long as such action does not conflict with the entitlements of other States.
29 From a practical point of view, only a very brave judge would assume universal jurisdiction over an extraterritorial offence, in the absence of any domestic legislation, solely on the basis of customary law. While national courts regularly import customary principles into national proceedings, this is only undertaken in the fields of private and public law, but not criminal law, because the latter requires specificity and legal certainty. Thus, the recognition by a State of the customary nature of universal jurisdiction over crime X, but without any implementing legislation, does not mean that the criminal courts of this country can assume this type of jurisdiction over an accused person.