View metadata, citation and similar papers at core.ac.uk brought to you by CORE D provided by Erasmus University Digital Repository Y N A M I S M A N DYNAMISM AND THE EROSION OF PROCEDURAL D T H E E SAFEGUARDS IN INTERNATIONAL GOVERNANCE R O S I O OF TERRORISM N O F P R O C E D U R A L S A F E G U A R D S I N I N T E R N A T I O N A L G O V E R N A N C E O F T E Nathanael Tilahun Ali R R O R I S M N a th a n a e l T ila h u n A li DYNAMISM AND THE EROSION OF PROCEDURAL SAFEGUARDS IN INTERNATIONAL GOVERNANCE OF TERRORISM © N. T. Ali, 2015. All rights reserved. No part of this publication may be reproduced, stored in a retrieval system, or transmitted in any form or by any means, electronic, mechanical, photocopying, recording or otherwise, without the prior permission of the author Printed & cover design by: Drukkerij Haveka Dynamism and the Erosion of Procedural Safeguards in International Governance of Terrorism Dynamisme en de erosie van procedurele waarborgen in internationale governance op het gebied van terrorisme Thesis to obtain the degree of Doctor from the Erasmus University Rotterdam by command of the rector magnificus Prof.dr. H.A.P. Pols and in accordance with the decision of the Doctorate Board. The public defense shall be held on Thursday 17 September 2015 at 15:30 hrs by Nathanael Tilahun Ali born in Wondo Genet, Ethiopia Doctoral Committee: Promotor: Prof.dr. E. Hey Other members: Prof.dr. D. Kritsiotis Prof.dr. H.S. Taekema Prof.dr. W.G. Werner Copromotor: Dr. J.D. Handmaker Table of Contents List of Acronyms and Abbreviations ................................................................................... v CHAPTER 1: INTRODUCTION ...................................................................................... 1 1.1. Overview ........................................................................................................................... 1 1.2. Central Propositions ........................................................................................................ 5 1.3. Methodological Approach .............................................................................................. 6 1.4. Methods Used ................................................................................................................11 1.5. Structure of the Thesis ..................................................................................................14 CHAPTER 2: EARLY INTERNATIONAL GOVERNANCE OF TERRORISM AS ARISTOCRATIC MUTUAL PROTECTION .........................................................17 2.1. Introduction....................................................................................................................17 2.2. The IAPL Draft Penal Law ..........................................................................................19 2.3. The League of Nations Draft Convention on Terrorism ........................................22 2.4. The Breakdown and Continuity of the Mutual-Protection Model .........................25 CHAPTER 3: POST-WAR INTERNATIONAL GOVERNANCE OF TERRORISM AS MUTUAL-SCRUTINY OF STATES ..............................................29 3.1. Introduction....................................................................................................................29 3.2. The International Law Commission’s Draft Code of Offences .............................31 3.2.1. The Definition of International Terrorism under the Draft Code of Offences .............................................................................................................................................32 3.2.2. The Purpose and Scope of the Draft Code of Offences ..................................36 3.3. United Nations General Assembly .............................................................................40 3.3.1. Linking Terrorism with State Conduct ...............................................................41 3.3.3. Embedment in the Discourse of Peaceful Inter-State Relations .....................43 3.4. The Move Away from Mutual-Scrutiny .....................................................................45 CHAPTER 4: CURRENT INTERNATIONAL COUNTER-TERRORISM AS COSMOPOLITAN GOVERNANCE .............................................................................49 4.1. Introduction....................................................................................................................49 4.2. Terrorism as a Global Public Problem .......................................................................50 4.2.1. The Individual as Perpetrator of Terrorism .......................................................51 4.2.2. The Individual as the Victim of Terrorism: Human Rights-based Approach……………………………………………………………………….53 4.2.2.1. Financial Compensation to Victims of Terrorism .....................................54 4.2.3. The Individual as the Victim of Terrorism: Non-Rights Based Initiatives ....57 4.2.3.1. The Deployment of Human Stories in Counter-Terrorism .....................57 4.2.3.2. Financial Compensations to Victims of Terrorism ....................................58 4.2.3.3. Recognition of Victims of Terrorism in Criminal Justice Systems ..........59 4.3. The Common Good and the Role of the State .........................................................62 4.4. Proactive Governance and the Role of Non-State Actors ......................................63 4.4.1. Terrorism Financing ..............................................................................................65 4.4.2. Control of arms and Dangerous Materials .........................................................70 4.4.3. Cross-border Movement of Goods and Persons ..............................................72 4.5. Problematizing Cosmopolitan Governance of Terrorism .......................................77 CHAPTER 5: DYNAMISM IN INTERNATIONAL GOVERNANCE OF TERRORISM ........................................................................................................................79 5.1. Introduction....................................................................................................................79 5.2. Dynamic Governance and De-formalisation ............................................................79 5.3. Openness of the Framework of Governance ............................................................83 5.3.1. Multi-faceted Framework: Illustration ................................................................83 5.3.2. Absorptive Framework: Illustration ....................................................................91 5.4. Flexibility of the Substantive Normative Measures ..................................................98 5.4.1. Trial-and-Error Governance: Illustration ...........................................................99 5.4.2. Adaptive Governance: Illustration .................................................................... 107 5.5. The Rising Utility of Dynamic Governance and its Adverse Consequences .... 110 5.5.1. Trends of Dynamism Elsewhere: Experimentalist Governance .................. 111 5.5.2. The Adverse Consequences of Dynamic Governance and Global Injustice .......................................................................................................................................... 115 CHAPTER 6: THE EROSION OF PROCEDURAL SAFEGUARDS IN INTERNATIONAL COUNTER-TERRORISM MONITORING ........................ 121 6.1. Introduction................................................................................................................. 121 6.2. De-legalisation and State-Empowerment in International Monitoring .............. 123 6.3. Counter-Terrorism Monitoring by the UN Security Council: the Counter- Terrorism Committee ........................................................................................................ 126 6.3.1. The Positioning of the Counter-terrorism Committee and its Working Methods……………………………………………………………………….127 6.3.2. The Working Methods of the Counter-Terrorism Committee: State Reporting and Country Visits ...................................................................................... 129 6.4. Counter-Terrorism Financing Monitoring of the FATF ...................................... 133 6.4.1. Self-evaluation ...................................................................................................... 134 6.4.2. FATF Mutual Evaluation Process: Procedure ................................................ 135 6.4.3. FATF Mutual Evaluation Process: Substantive Guidelines .......................... 138 6.4.4. FATF Blacklisting and Counter-Measures ...................................................... 141 6.5. The Erosion of Procedural Safeguards in Context ................................................ 142 6.5.1. International Judicial Bodies: the International Court of Justice ................. 143 6.5.2. National and Regional Courts ........................................................................... 146 6.5.3. Complaints Procedures at the Human Rights Council and International Human Rights Treaty Bodies ....................................................................................... 148 6.5.4. Complaint Mechanisms within International Counter-Terrorism Bodies .. 151 6.6. Conclusion: Towards a Community of Collective Endeavour ............................ 152 CHAPTER 7: CONCLUSION AND FURTHER THOUGHTS ............................ 155 7.1 Overview ....................................................................................................................... 155 7.2. Dynamism and the Erosion of Procedural Safeguards ......................................... 156 7.3. Further Thoughts: Patterns of Privilege and Disadvantage ................................. 161 7.3.1. Immunization of the State ................................................................................. 161 7.3.2. Co-option of Critical Actors .............................................................................. 162 7.3.3. Empowerment of Certain Private Actors ........................................................ 165 7.4. Rethinking Applicable Legal Frameworks: Directions for Future Research ..... 166 Summary .............................................................................................................................. 169 Nederlandse Samenvatting ............................................................................................... 175 Bibliography ........................................................................................................................ 181 Thank You’s ........................................................................................................................ 213 About the Author............................................................................................................... 215 List of Acronyms and Abbreviations AEO Authorized Economic Operator AIS Automatic Identification System AML/CFT Anti-Money Laundering/ Counter-Terrorism Financing API Advance Passenger Information AT Assessment Team (of the Financial Action Task Force) CEN Customs Enforcement Network CTAG Counter Terrorism Action Group CTC Counter Terrorism Committee CTED Security Council’s Counter Terrorism Committee, Executive Directorate CTITF Counter Terrorism Implementation Task Force EAPCCO Eastern Africa Police Chiefs’ Cooperation Organization ESAAMLG Eastern and Southern African Anti-Money Laundering Organization FATF Financial Action Task Force FSAP Financial Sector Assessment Program FSRB FATF Style Regional Body G8 Group of Eight Industrialized Countries GCTS Global Counter terrorism Strategy IAEA International Atomic Energy Agency IAPL International Association of Penal Law IATA International Air Transport Association iARMS Illicit Arms Records and Tracing Management System ICAO International Civil Aviation Organization ICC International Criminal Court ICJ International Court of Justice ICPAT Capacity Building Program against Terrorism ICRC International Committee of the Red Cross ICRG International Cooperation Review Group ICTY International Criminal Tribunal for the Former Yugoslavia IFI International Financial Institutions IGAD Intergovernmental Authority on Development