Student ID: 200771848 International Human Rights 2142 word count: 3,287 Introduction It is commonly understood amongst the international community that freedom from torture is an inalienable right, inherent in every human being. However, with the contemporary challenges that states’ face, the freedom from torture in the non-refoulement context presents problems and thus the question is asked, can deportation to face torture be justified in exceptional circumstances? The following will start by discussing the international human rights legal framework with a focus on the level of protection it provides whilst discussing the legal loopholes states may use to justify deportation. In addition, discussion will be given to the ‘absolute approach’ that has been taken by judicial and international bodies. This essay will then move on to analyse international refugee law and how such law has presented significant contradictions, which governments have used as a foundation to justify deportation to face torture. Once establishing the legal framework that surrounds this area, this essay will then move on to discuss various positions for and against the justification of torture in a moral and philosophical context. Finally, discussion
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Student ID: 200771848 International Human Rights 2142 word count: 3,287
Introduction
It is commonly understood amongst the international
community that freedom from torture is an inalienable
right, inherent in every human being. However, with the
contemporary challenges that states’ face, the freedom
from torture in the non-refoulement context presents
problems and thus the question is asked, can deportation
to face torture be justified in exceptional
circumstances?
The following will start by discussing the international
human rights legal framework with a focus on the level of
protection it provides whilst discussing the legal
loopholes states may use to justify deportation. In
addition, discussion will be given to the ‘absolute
approach’ that has been taken by judicial and
international bodies.
This essay will then move on to analyse international
refugee law and how such law has presented significant
contradictions, which governments have used as a
foundation to justify deportation to face torture.
Once establishing the legal framework that surrounds this
area, this essay will then move on to discuss various
positions for and against the justification of torture in
a moral and philosophical context. Finally, discussion
Student ID: 200771848 International Human Rights 2142 word count: 3,287will be given to use of diplomatic assurances as a method
of circumventing the absolute nature of non-refoulement,
which derives from the prohibition of torture.
Protection and Room for Justification within the Legal
Framework
When considering international human rights law the
United Nations Convention against Torture (UNCAT)1
provides a logical starting point. Article one of the
convention defines the term torture for the purposes of
the document.
Within article one there is a lawful sanctions clause. It
states that the definition of torture for the purposes of
the convention “does not include pain or suffering
arising from inherent in or incidental to lawful
sanctions”2. This clause has been the subject of
controversial debate. Manfred Nowak has referred to how
the clause has been used by Islamic and other states to
justify severe cases of corporal and capital punishment3.
Nowak expands on this statement by discussing the
examination of the 2002 report of Saudi Arabia by the
1 United Nations Convention against Torture and Other Cruel, Inhuman or Degrading Treatment or Punishment 1984 (hereinafter known as the Convention against Torture) 2 above, No1, Art 13 M. Nowak, ‘Challenges to the absolute nature of the Prohibition of Torture and ill-treatment’, Netherlands Quarterly of Human Rights, 23 (2005), 680
Student ID: 200771848 International Human Rights 2142 word count: 3,287Committee Against Torture (CAT)4. Within the report it was
stated by Saudi Arabia that the Koran set out whipping,
amputation and stoning for certain crimes, that it was
the law of the land and therefore permitted by the lawful
sanctions clause.
Nowak concludes that systematic interpretations of
article one’s lawful sanctions clause remain unclear and
thus the clause has no scope of application and must be
ignored5. The question is how does this relate to the
refoulement of persons? It may be said that, the lawful
sanctions clause enables states such as Saudi Arabia to
justify, what some would consider, acts of torture. Thus,
states wishing to deport persons to such countries may
justify such deportation on the grounds that the
individual is, in fact, not going to face torture, or at
least, not face torture under the definition of UNCAT.
Article 3 of UNCAT states that no state shall return or
extradite a person to another state where there are
substantial grounds for believing that he would be in
danger of being subject to torture6. It would appear that
article three has a significant lacuna as it fails to
encompass cruel inhuman and degrading treatment (CIDT).
4 UN Docs CAT/C/SR.519 and 5255 M. Nowak, above No 2, 6836 Convention against Torture, Art 3
Student ID: 200771848 International Human Rights 2142 word count: 3,287Such a position presents problems since the definitive
line between CIDT and torture is somewhat grey. This was
recognised by the Committee against Torture (CAT) in
their general comment two of 2007, which stated that it
is difficult to ascertain the threshold between ill-
treatment and torture7. However, following the failure of
CAT to elaborate on the non-derogability of CIDT within
the principle of non-refoulement8, states may be able to
justify deportation to face CIDT, when in fact the
individual is likely to face torture. It may be said that
this position undermines the absolute nature of the
prohibition against torture.
In addition the protection that UNCAT offers is limited
to those acts that are carried out by or acquiesced by
state officials9, thus any threat of torture that may
emanate from a non-state party is an immaterial
consideration under the convention. This prevents a
significant lack of protection to those that are deported
on grounds of national security. A recent example of a
deportation to, more likely than not, face torture is the
United Kingdom’s deportation of a Pakistani activist who
has received threats from the Taliban10. The deportation 7 General Comment 2, CAT/C/GC/2/CRP.1/Rev.4, 23 Nov, 2007,para 3 8 Aoife Duffy. ‘Expulsion to Face Torture? Non-refoulementin International Law’, p3809 Convention against Torture 1984, A1, A1610 https://newhumanist.org.uk/articles/4764/uk-to-deport-pakistani-activist-who-has-received-taliban-death-threats> accessed 1st January 15
Student ID: 200771848 International Human Rights 2142 word count: 3,287is almost certain to result in torture, however the UK is
able to legally justify the deportation, as the threats
emanate from a non-state actor.
The International Covenant on Civil and Political Rights11
(ICCPR) provides individuals who face refoulement a wider
avenue of protection as article seven provides for both
torture and CIDT12. The covenant does not expressly extend
the right to the principle of non-refoulement. However,
within general comment twenty of the Human Rights
Committee acknowledges the principle of non-refoulement
and rejects the possibility of states deporting persons
to face torture or CIDT13. Moreover in March 2004, the
Human Rights Committee adopted general comment thirty one
which stated that no state shall deport a person to one
state where there is a risk of subsequently being
deported to a another state where there is a risk of
being subject to violations of article seven14.
We can see that with the ICCPR also encompassing CIDT
into the ‘absolute prohibition’ stance that it takes
against refoulement, that it offers individuals a wider
scope of protection when addressing the issue of non-
refoulement.
11 International Covenant on Civil and Political Rights 1966 (hereinafter known as ICCPR)12 ICCPR, Article 713 GC20, HRI/GEN/1/Rev.1 (1994), 30, s.9 14 CCPR/C/21/Rev.1/Add.13, para 12
Student ID: 200771848 International Human Rights 2142 word count: 3,287Although not universally applicable the European
Convention of Human Rights15 provides a clear
demonstration of the European stance on the prohibition
on torture. Article three of the convention provides that
no one shall be subjected to torture or CIDT16. In the
case of Ireland v UK the European Court of Human Rights
affirmed the absolute nature of the article three rights
irrespective of the individuals conduct17. Moreover, in
the case of Soering the European Court of Human Rights
extended the article three rights to cases of non-
refoulement by holding that the deportation of a man to
the USA to face the death penalty was contrary to the
spirit of the article18. Finally in the case of Chahal the
court reaffirm the absolute nature of the article three
rights and affirmed their absolute position in the
context of non-refoulement even in times of national
emergency19.
Aoife Duffy has suggested that, although not universally
applicable the ECHR offers a greater level of protection
than the UNCAT as it holds both torture and CIDT as non-
derogable within non-refoulement20.
15 European Convention for the Protection of Human Rights and Fundamental Freedoms (hereinafter known as the ECHR),Rome, 4 Nov, 195016 The ECHR, above, No15, Art 3 17 Ireland v United Kingdom (1978) ECHR, Series A, No 2518 Soering v UK (1989) ECHR, Series A, No161, para 8819 Chahal v United Kingdom (1996) ECHR, para 8020 A. Duffy, above, No 7, 379
Student ID: 200771848 International Human Rights 2142 word count: 3,287When discussing international instruments applicable to
refoulement it is also necessary to discuss the
Convention Relating to the Status of Refugees21. Article
33(1)22 incorporates the rule of non-refoulement. However,
33(2) states that the above may not apply to those who
pose a threat to the security of the country that he is
in23. However, article 33(2) is not the only exception,
article 1(f) allows states to refuse admission24.
Moreover, article 1(f)(c) refers to the exclusion of
persons who have committed acts that run contrary to
purposes and principle of the United Nations25. Both of
these exclusions clearly run contrary to the absolute
position that we have seen in the above instruments. They
provide for a balancing between national security and the
rights of the individual, thus enabling states to justify
the deportation of persons to face torture.
Justifying Torture
As we have seen above, UNCAT, ICCPR and the European
Convention provide an absolute, non-derogable approach on
the prohibition on torture. Thus it may be concluded,
that under international obligations there are no
exceptional circumstances that justify the deportation of
21 The Convention Relating to the Status of Refugees (hereinafter known as the Refugee Convention) (1954) 22 Refugee Convention, Art 33(1)23 ibid, Art 33(2)24 ibid, Art 1(f)25 ibid, Art 1(f)(c)
Student ID: 200771848 International Human Rights 2142 word count: 3,287an individual to face torture. However, it has been
suggested that with the modern terror threats states are
faced with, it is hard to conclude that the principle of
non-refoulement has acquired peremptory status26.
Domestic case law has opened the door to the idea of
possible exceptions, similar to those that we have seen
in the Refugee Convention. The case of Suresh v Canada27
concerned the deportation of a former Tamil Tiger
(terrorist group in Sri Lanka), Suresh claimed that if
deported he would face torture. However, the focus of the
Supreme Court judgement seemed to be on domestic
legislation rather than Canada’s international
obligation. The court stated, “International norms are
not necessarily binding, unless incorporated into
Canadian law”28. The court further stated, “We do not
exclude the possibility that in exceptional
circumstances, deportation to face torture might be
justified”29. This clearly displays an attitude that the
absolute prohibition on torture is not absolute, but in
fact may be balanced against matters of national
security. It may be said that such an approach undermines
the rights that international instruments seek to
protect.
26 Aoife Duffy article, above, No 7, 38227 Suresh v Canada (Minister of Citizenship and Immigration), Supreme Court of Canada [2002] SCC 1 28 ibid, para 6029 ibid, para 78
Student ID: 200771848 International Human Rights 2142 word count: 3,287The Human Rights Committee condemned the decision in
their concluding observations30. They stated that article
seven31 was non-derogable and that Canada should
acknowledge this and incorporate it into their legal
system32.
The Suresh case presented a challenge to the non-
derogability of the principle of non-refoulement and
demonstrated a reaction to the extreme circumstances that
contemporary governments face.
Both the Human Rights Committee and the Committee Against
Torture have subsequently reaffirmed the absolute nature
of the prohibition against torture in the cases of Alzery
v Sweden33 and Agiza v Sweden34, where both bodies held the
deportation of Egyptian nationals on countervailing
considerations of national security to be violations of
article three (UNCAT) and article seven (ICCPR).
Despite the reaffirmation of the absolute position of
non-refoulement governments continue to challenge it. The30 Concluding Observations of the Human Rights Committee, Canada, U.N. Doc. CCPR/C/CAN/CO/5 (2006)
31 ICCPR 1966, Article 7 (freedom from torture and CIDT)32 Concluding Observations of the Human Rights Committee, Canada, U.N. Doc. CCPR/C/CAN/CO/5 (2006), para 15
33 Alzery v Sweden, Human Rights Committee, UN Doc CCPR/C/88/D/1416/200534 Agiza v Sweden, Committee against Torture, UN Doc CAT/C/34/D/233/2003
Student ID: 200771848 International Human Rights 2142 word count: 3,287case of Ramzy v Netherlands35 provides a good example of
modern governments seeking the reform the absolute
approach. The case concerned the deportation of an
Algerian national who claimed that if deported would be
exposed to a real risk of torture and thus a violation of
article three under the ECHR. The UK alongside Portugal,
Lithuania, Slovakia and the Netherlands sought to reform
the absolute principle that was established in the
earlier case of Chahal36 (discussed above).
The thrust of the argument put forward by the intervening
governments was that the Chahal decision was too
restrictive and reform should allow states to balance the
risk of harm against national security considerations37.
In addition to the UK’s intervention in the Ramzy case,
the UK also intervened in the case of Saadi v Italy38 in
another attempt to revisit the Chahal decision. The UK
argued that the decision in Chahal prevented contracting
states from weighing the right against matters of
national security39, further, that the approach did not 35 Ramzy v Netherlands, European Court of Human Rights, Application No. 25424/05 (2008) 36 Chahal v UK, above, No 1937 Alexander Horne, Melanie Gower & Joanna Dawson, ‘Deportation of Individuals who may Face Torture’ House of Commons publication, 2014, p30
38 Saadi v Italy, European Court of Human Rights, Application No. 37201/06, judgment of February 200839 ibid, para 117
Student ID: 200771848 International Human Rights 2142 word count: 3,287reflect the universally recognised imperative and
contradicted the initial intentions of the signatories40.
Moreover, the UK argued that within cases concerning
national security the burden of proof on the applicant
should be greater, suggesting that it should be
demonstrated to be ‘more likely than not’ that torture
will occur upon deportation41.
The European Court of Human Rights rejected the UK’s
arguments. They stated that there could be no derogation
from the absolute principle of article three and that the
weighing up of risk of torture and the dangerousness of
the person is an idea that is misconceived42. We can see
that through domestic case law and the challenges within
Europe to the absolute nature of non-refoulement that
states have sought to justify the deportation of persons
on the grounds of national security. It may be argued
that adopting a stance that balances freedom from torture
and national security is merely creating a tool that
takes into consideration the right to life of those who
reside in the concerned state. Does the freedom from
torture of one person justify risking the life of many?
It is such an argument that both governments and
academics have sought when justifying the use of torture,
an argument that is applicable when discussing challenges
to the absolute nature of non-refoulement.
40 ibid, para 12241 ibid42 ibid, para 138
Student ID: 200771848 International Human Rights 2142 word count: 3,287
Alan Dershowitz has suggested the idea of legalising
torture is certain circumstances through a torture
warrant obtained through a judicial body43. Dershowitz
uses the idea of a torture warrant within the ticking
time bomb scenario making reference to how, if confronted
with this situation most authorities would resort to the
use of torture. Dershowitz also raises the argument that
considering the level of inevitability of torture within
such a scenario the use of torture warrants would create
accountability which is consistent with our democratic
values. Moreover, Dershowitz refers to this argument in
an article in the LA Times44. Within the article
Dershowitz makes reference to how democracy requires
accountability and transparency and importantly
compliance with the rule of law. And that such compliance
is impossible when an extraordinary technique, such as
torture, operates outside of the law.
It may be said that such an argument is relevant when
addressing the issue of non-refoulement. If states were
able to deport person through the balancing of rights
against countervailing considerations, a degree of
accountability and transparency would be created on the
international plane. Dershowitz refers to how authorities43 http://www.alandershowitz.com/publications/docs/torturewarrants2.html> accessed 2 January 1544 http://articles.latimes.com/2001/nov/08/local/me-1494> accessed 2 January 15
Student ID: 200771848 International Human Rights 2142 word count: 3,287would inevitably use torture within a ticking time bomb
scenario. Can the same not be said for governments
wishing to deport persons in order to protect their
national security interests? One might say that a state
protecting its interests is inevitable. We can see this
in the case of Othman45(discussed later in the essay) when
the UK deported an individual to Jordan despite the
European Courts dissent. Thus it may be said, that the
absolute approach to refoulement currently adopted does
not provide for this.
However, Dershowitz’s argument has not gone without
criticism. William Schulz heavily criticised the idea of
a torture warrant in his article ‘the torturer’s
apprentice’46. Schulz states that apart from Dershowitz’s
argument condoning the inherently abhorrent act of
torture, there are pragmatic reasons for dismissing it.
Schulz refers to how the time bomb scenario makes the
assumption that the authorities have all the required
information i.e. they know that there is definitely a
bomb that will go off, that the suspect knows it is going
to go off and that he or she has the relevant information
to stop it. This is certainly an argument that may rebut
any argument that promotes the balancing or rights
45 Othman (Abu Qatada) v. United Kingdom (Appl. No. 8139/09), Judgment of 17 January 2012, European Court of Human Rights (4th sect.)46 William F Schulz, ‘The Torturer’s Apprentice’, The Nation, 2002
Student ID: 200771848 International Human Rights 2142 word count: 3,287against national security within the context of
refoulement.
It cannot definitively said that the person a state
wishes to deport does present a threat to national
security to a level that would inevitably endanger lives
and thus justify his or her deportation to face torture.
Circumventing International Obligations
Thus far we have seen a change in the attitude of
signatory states as to the absolute nature of non-
refoulement and further academic attempts to justify the
use of torture. With the absolute nature of non-
refoulement states, when deporting individuals to
countries with questionable human rights records have
sought to rely on diplomatic assurances.
Diplomatic assurances provide deporting state with the
assurance that the deported individual will be free from
any violations of international obligations47. Sweden in
the cases of Agiza48 and Alzery49 relied on diplomatic
assurances when deporting two individuals to Egypt. The
UK has also sought to rely on diplomatic assurances. The
UK has established memoranda of understanding (MOU) with
47 Article 3 of UNCAT, Article 3 of the ECHR, Article 7 ofICCPR and even article 33 (1) of the Refugee Convention48 Above, No 3449 Above, No 33
Student ID: 200771848 International Human Rights 2142 word count: 3,287Jordan, Algeria, Libya and Lebanon50 to facilitate
deportations.
The above assurances were given credit by the then
foreign secretary Jack Straw who stated that the
assurances were specific and detailed thus rendering them
sufficient to maintain the UK’s international
obligations51. In addition, the then Minister for Trade
Ian McCartney advocated their use, stating that the
assurances provided an additional layer protection over
and above the provisions of international instruments52.
Nevertheless, diplomatic assurances have received
significant criticism. INTERIGHTS and Amnesty
International have both stated that the reliance on such
assurances creates a dangerous loophole in non-
refoulement and ultimately erodes the absolute
prohibition on torture53. In addition, the Joint Committee
on Human Rights concluded that diplomatic assurances
could undermine established obligations and further, that50 ibid, above, No 37, p1451 Foreign Affairs Committee, Developments in the European Union,13 December 2005, HC 768(i)
52 HC Deb, 15 June 2006, c354WH53 Written submission to the European Court of Human Rights from Amnesty International Ltd., The Association For The Prevention of Torture, Human Rights Watch, INTERIGHTS, The International Commission of Jurists, OpenSociety Justice Initiative and Redress in the case of Ramzy v Netherlands
Student ID: 200771848 International Human Rights 2142 word count: 3,287there is a lack of remedies available on breach54.
Diplomatic assurances have also received academic
criticism. Manfred Nowak makes reference to cases such as
the USA’s deportation of Maher Arar to Syria55 and
Sweden’s deportation of Agiza and Alzery to Egypt, all
reliant on assurances and all failed to provide
sufficient protection56. Nowak concludes that the very
fact that these non-binding assurances are needed is
evidence that states are violating international law.
Moreover, he states that assurances are merely an attempt
by states to circumvent their obligations57.
However, despite such criticism states consistently seek
to rely on such assurances. Within the case of Othman v
UK58 the UK sought to deport an individual to Jordan
relying on an MOU. Within the courts judgment the MOU was
found to be sufficient enough to protect Othman from any
violations of his article three rights59. The court stated
that the MOU was specific and comprehensive as it
directly referred to Othman’s article three rights,
54 Joint Committee on Human Rights, The UN Convention on Torture, 19th Report of Session 2005-6, paragraphs 129 & 131 55 Arar v. Ashcroft, 414 F.Supp.2d 250 (E.D. N.Y. 2006)56 M. Nowak, above, No 2, pages 685 & 68657 ibid, p687 58 Othman (Abu Qatada) v. United Kingdom (Appl. No. 8139/09), Judgment of 17 January 2012, European Court of Human Rights (4th sect.)59 ECHR, Article 3 (freedom from torture and CIDT)
Student ID: 200771848 International Human Rights 2142 word count: 3,287further the assurance was unique in that it had withstood
examination by an independent tribunal60.
It may be said that international bodies such as the
European Court of Human rights, CAT and the HRC that
there is no attitude that places an outright ban on the
use of diplomatic assurances. Assurances have been found
to be insufficient in cases where the wording of them is
not comprehensive or specific enough to prevent
violations of the prohibition on torture. But, in cases
such as Othman it has been found that assurances may be
sufficient if they are specific and comprehensive. Thus
it may be concluded that diplomatic assurances offer
states a way of justifying deportation where there is a
risk of torture. Nevertheless, the countervailing
argument cannot be ignored. If the use of assurances were
to become an international norm then it could lead to the
erosion of the absolute nature of non-refoulement.
Moreover, if states such Jordan and Algeria (who are
signatories to UNCAT) cannot honour their international
obligations, what is there to say that they will honour
any bilateral agreement?
Conclusion
60 Othman (Abu Qatada) v. United Kingdom (Appl. No. 8139/09), Judgment of 17 January 2012, European Court of Human Rights (4th sect.) para 194
Student ID: 200771848 International Human Rights 2142 word count: 3,287We have seen human rights international instruments and
their respective bodies take an absolute prohibition
approach to torture in the non-refoulement context. That
said significant lacunas in said instruments have been
discussed. It may be concluded, that the failings of
these instruments allow signatory states to justify
deportation to face torture in extreme circumstances,
despite the absolute approach. Moreover, we have seen the
Refugee Convention run contrary to the absolute approach.
It may be said that the reasoning of the Refugee
Convention has provided a foundation from which states
have sought to justify their argument for a balanced
approach.
The cases of Suresh, Ramzy and Saadi have demonstrated
significant challenges to the absolute nature of non-
refoulement, thus calling into question its peremptory
status. Moreover, certain academics have taken a more
moral philosophical approach to this issue. Dershowitz
puts forward the argument that the prohibition of torture
when challenged by national security will inevitably come
second. And thus, authorising it in limited circumstances
creates accountability and transparency.
Further to the above, states have sought to rely on
diplomatic assurances. We have seen that despite
criticism as to their poor level of enforceability and
legitimacy, signatory states continue to rely on them,
Student ID: 200771848 International Human Rights 2142 word count: 3,287and use them as justification when deporting individuals
to countries with questionable human rights records.
It may be concluded that signatory states persistently
seek to justify deportation to face torture in national
security circumstances; despite the stance that non-
refoulement is non-derogable. However, it may also be
said that the case of Othman provides an example of a
movement, by international bodies, towards the use of
diplomatic assurances as the court accepted the assurance
stating it to be sufficiently specific enough to provide
safeguards against any risk of torture.
Student ID: 200771848 International Human Rights 2142 word count: 3,287
Bibliography
International Instruments
United Nations Convention against Torture and Other
Cruel, Inhuman or Degrading Treatment or Punishment 1984
International Covenant of Civil and Political Rights 1966
The Convention Relating to the Status of Refugees 1954
European Convention for the Protection of Human Rights
and Fundamental Freedoms 1950
HRC & CAT General Comments & Observations
GC20, HRI/GEN/1/Rev.1 (1994)
General Comment 2, CAT/C/GC/2/CRP.1/Rev.4, 23 Nov 2007
Concluding Observations of the Human Rights Committee,
Canada, U.N. Doc. CCPR/C/CAN/CO/5 (2006)
UN Docs CAT/C/SR.519 and 525
European Court of Human Rights Cases
Ireland v United Kingdom (1978) ECHR, Series A, No 25
Soering v UK (1989) ECHR, Series A, No161
Chahal v United Kingdom (1996) ECHR
Student ID: 200771848 International Human Rights 2142 word count: 3,287Ramzy v Netherlands, European Court of Human Rights,
Application No. 25424/05 (2008)
Saadi v Italy, European Court of Human Rights,
Application No. 37201/06,
Judgment of February 2008
Othman (Abu Qatada) v. United Kingdom (Appl. No.
8139/09), Judgment of 17 January 2012, European Court of
Human Rights (4th sect.)
Canadian & USA Cases
Suresh v Canada (Minister of Citizenship and
Immigration), Supreme Court of Canada [2002] SCC 1
Arar v. Ashcroft, 414 F.Supp.2d 250 (E.D. N.Y. 2006)
CAT & HRC Cases
Agiza v Sweden, Committee against Torture, UN Doc
CAT/C/34/D/233/2003
Alzery v Sweden, Human Rights Committee, UN Doc CCPR/C/88/D/1416/2005