Minorities, Minority Rights and Internal Self-Determination

Minorities, Minority Rights and Internal Self-Determination

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Ulrike Barten Minorities, Minority Rights and Internal Self-Determination

Ulrike Barten Department of Law University of Southern Denmark Odense Denmark ISBN 978-3-319-08875-4 ISBN 978-3-319-08876-1 (ebook) DOI 10.1007/978-3-319-08876-1 Springer Cham Heidelberg New York Dordrecht London Library of Congress Control Number: 2014950833 Springer International Publishing Switzerland 2015 This work is subject to copyright. All rights are reserved by the Publisher, whether the whole or part of the material is concerned, specifically the rights of translation, reprinting, reuse of illustrations, recitation, broadcasting, reproduction on microfilms or in any other physical way, and transmission or information storage and retrieval, electronic adaptation, computer software, or by similar or dissimilar methodology now known or hereafter developed. Exempted from this legal reservation are brief excerpts in connection with reviews or scholarly analysis or material supplied specifically for the purpose of being entered and executed on a computer system, for exclusive use by the purchaser of the work. Duplication of this publication or parts thereof is permitted only under the provisions of the Copyright Law of the Publisher s location, in its current version, and permission for use must always be obtained from Springer. Permissions for use may be obtained through RightsLink at the Copyright Clearance Center. Violations are liable to prosecution under the respective Copyright Law. The use of general descriptive names, registered names, trademarks, service marks, etc. in this publication does not imply, even in the absence of a specific statement, that such names are exempt from the relevant protective laws and regulations and therefore free for general use. While the advice and information in this book are believed to be true and accurate at the date of publication, neither the authors nor the editors nor the publisher can accept any legal responsibility for any errors or omissions that may be made. The publisher makes no warranty, express or implied, with respect to the material contained herein. Printed on acid-free paper Springer is part of Springer Science+Business Media (www.springer.com)

Preface Distinguished reader, The book you are holding in your hand was originally written, submitted and accepted as a Ph.D. thesis at the University of Southern Denmark. For 3 years I could immerse myself into a topic which most scholars regard as two separate ones: minority rights and the right to self-determination. This book shows that they are two sides of the same coin. Minority rights guaranteed by international hard and soft law overlap considerably with the concept of internal self-determination. Thus, the conclusion is that minorities have a right to internal self-determination; a conclusion that states should not fear but can embrace in good faith. Since the thesis was submitted, international law has developed further. This is reflected in the updates that are incorporated. A few points have been explained or strengthened. Chapter 10 has been reworked and the overlap of self-determination and minority rights is spelt out more clearly. My thanks go to many different people who were there for me during the process of writing the Ph.D. thesis and who have now helped to make the thesis into a publishable piece of work. I cannot name them all. However, I would like to thank my Ph.D. supervisor Bugge Daniel, whose nagging questions and drawing abilities I came to appreciate during the process of writing. My thanks go also to my former colleagues at the Department of Border Region Studies of the University of Southern Denmark as well as to all involved in this book project at the Law Department of the University of Southern Denmark. Furthermore, I thank the assessment committee composed of Prof. Dr. Michael Steinicke of Aarhus University, Dr. Catriona Drew of SOAS and Dr. Sia Spiliopoulou Åkermark of the Åland Islands Peace Institute for their valuable comments. v

vi Preface Last but certainly not least I would like to thank Timo, whose simple words of encouragement carry me through the rough parts of life. Odense, Denmark June 2014 Ulrike Barten

Glossary ACHPR African Charter on Human and Peoples Rights art./arts. Article/s (of a treaty/declaration/agreement) CERD Committee on the Elimination of Racial Discrimination CFR Charter of Fundamental Rights CIL customary international law CoE Council of Europe CSCE Conference on Security and Co-operation in Europe EC European Communities ECOSOC United Nations Economic and Social Council ECHR European Convention of for the Protection of Human Rights and Fundamental Freedoms ECtHR European Court of Human Rights EU European Union FCNM Framework Convention FRD Friendly Relations Declaration (also: GA Res. 2625) GA United Nations General Assembly GA Res. United Nations General Assembly Resolution GATT General Agreement on Tariffs and Trade GC Genocide Convention HCNM OSCE High Commissioner on National Minorities ICCPR International Covenant on Civil and Political Rights ICERD International Convention on the Elimination of all Forms of Racial Discrimination ICESCR International Covenant on Economic, Social, and Cultural Rights ICJ International Court of Justice ICJ-S Statute of the International Court of Justice ICTY International Criminal Tribunal for the Former Yugoslavia ILO International Labour Organization IMF International Monetary Fund vii

viii IR LoN LC NATO NGO para./paras. PCIJ ODIHR OSCE PACE Res. TEU TFEU UDHR UN UNC UNESCO US VCLT VDPA Glossary International relations League of Nations Language Charter North Atlantic Treaty Organization Non-Governmental Organization Paragraph/s (of a treaty/declaration/agreement) Permanent Court of International Justice OSCE Office for Democratic Institutions and Human Rights The Organization for Security and Co-operation in Europe Parliamentary Assembly of the Council of Europe Resolution Treaty on European Union Treaty on the Functioning of the European Union Universal Declaration of Human Rights United Nations Charter of the United Nations United Nations Educational, Scientific, and Cultural Organization United States of America Vienna Convention on the Law of Treaties Vienna Declaration and Programme of Action

Contents Part I The Framework 1 Introduction... 3 1.1 Research Question and Approach... 4 1.2 Framework...................................... 6 1.3 Terminology... 8 1.4 Structure... 11 References... 13 2 The International Relations Framework... 15 2.1 Liberalism...................................... 18 2.2 Regimes, Governance and Institutions..... 20 Conclusion........................................... 23 References... 24 3 Classic Sources on Minority Rights and Self-Determination... 27 3.1 Treaties........................................ 28 3.1.1 Minority Rights in Treaties.... 28 3.1.2 Self-Determination in Treaties... 34 3.1.3 Intermediate Conclusion..... 36 3.2 Customary International Law.... 37 3.2.1 Classic Customary International Law............ 37 3.2.2 Modern Customary International Law............ 41 3.2.3 Intermediate Conclusion..... 43 3.3 Other Sources of International Law..... 43 Conclusion........................................... 45 References... 45 ix

x Contents 4 Non-State Actors and Non-Binding Instruments... 49 4.1 International Governmental Organizations as Non-State Actors......................................... 50 4.1.1 Taking International Governmental Organizations Seriously... 51 4.1.2 Criteria for International Organizations...... 53 4.1.3 Overview of International Governmental Organizations...... 57 4.2 Non-Binding Instruments...... 64 4.2.1 Non-Binding Instruments Under Classic International Law........................... 65 4.2.2 Inefficient Treaty Law... 70 4.2.3 Criteria for Non-Binding Instruments... 71 4.2.4 Overview of Non-Binding Instruments... 72 Conclusion........................................... 82 References... 84 5 Legitimacy and Justice... 89 5.1 Legal Positivism and Sources Doctrine................. 90 5.2 Legitimacy...................................... 93 5.3 Justice......................................... 99 5.4 The Original Position, Minorities and Self-Determination... 105 Conclusion........................................... 111 References... 111 6 Legitimacy and Justice of Non-Binding Instruments... 115 6.1 Summary of the Criteria of Legitimacy and Justice... 116 6.2 The UN Minority Declaration........................ 117 6.2.1 Legitimacy of the UN Minority Declaration... 117 6.2.2 Justice of the UN Minority Declaration........... 118 6.3 The Copenhagen Document...... 120 6.3.1 Legitimacy of the Copenhagen Document... 120 6.3.2 Justice of the Copenhagen Document.... 122 6.4 Resolution 1541.................................. 123 6.4.1 Legitimacy of Resolution 1541..... 123 6.4.2 Justice of Resolution 1541.................... 126 6.5 The Friendly Relations Declaration... 127 6.5.1 Legitimacy of the Friendly Relations Declaration... 127 6.5.2 Justice of the Friendly Relations Declaration....... 129 Conclusion........................................... 130 References... 133

Contents xi Part II Key Concepts 7 Minority Rights... 137 7.1 A History of Minority Rights...... 138 7.1.1 The Beginnings of Minority Protection in Europe... 138 7.1.2 Post World War I: The Minority Treaties...... 140 7.1.3 Minority Protection in the League of Nations... 142 7.1.4 Intermediate Conclusion..... 146 7.2 The Concept of Minority Rights... 147 7.2.1 The Collective Dimension........ 148 7.2.2 Equality and Non-Discrimination...... 152 7.2.3 Minority Rights as Additional Rights.... 153 7.3 Further Characteristics and Challenges of Minority Rights... 154 7.4 On the Necessity of Minority Rights... 156 Conclusion........................................... 157 References... 157 8 Minority, People, Nation... 161 8.1 Minority Definition................................ 162 8.1.1 National vs. Ethnic, Religious and Linguistic Minorities?............................... 163 8.1.2 The Nationality Requirement... 166 8.1.3 Characteristics and Recognition of Minorities...... 169 8.1.4 Subjective Factors.......................... 170 8.1.5 Detecting Minorities via Historical Threats........ 172 8.1.6 Intermediate Conclusion..... 173 8.2 Minority, People, Nation... 174 8.2.1 Indigenous Peoples...... 175 8.2.2 Peoples.................................. 176 8.2.3 Nations as a Link...... 178 Conclusion........................................... 181 References... 182 9 Understanding Self-Determination... 185 9.1 The Historical Perspective........................... 185 9.1.1 The Nineteenth Century..... 186 9.1.2 World War I: Self-Government and Self-Determination.......................... 188 9.1.3 Self-Determination During the Cold War.......... 190 9.1.4 Self-Determination Today... 191 9.2 Conceptual Issues... 193 9.2.1 External and Internal Self-Determination.... 194 9.2.2 Underlying Thoughts on Self-Determination... 199 9.2.3 Self-Determination as Result or Process.......... 201

xii Contents 9.2.4 The Nature of the Right to Self-Determination...... 202 9.2.5 Self-Determination for a Nation, a People and for Whom Now?........................ 205 9.3 The Content of Self-Determination... 207 9.4 Self-Determination, Minorities and Minority Rights.... 211 Conclusion........................................... 214 References... 216 Part III The Analysis 10 Minority Rights and Internal Self-Determination... 223 10.1 The Right to Identity.... 227 10.1.1 Legitimacy of the Right to Identity........ 228 10.1.2 Justice of the Right to Identity..... 229 10.1.3 The Right to Identity and Self-Determination.... 231 10.2 The Right to Language... 232 10.2.1 Legitimacy of the Right to Language... 233 10.2.2 Justice of the Right to Language... 236 10.2.3 The Right to Language and Self-Determination..... 237 10.3 The Right to Cross-Frontier Contacts... 238 10.3.1 Legitimacy of the Right to Cross-Frontier Contacts... 239 10.3.2 Justice of the Right to Cross-Frontier Contacts... 241 10.3.3 The Right to Cross-Frontier Contacts and Self- Determination.... 242 10.4 The Right to Participation........................... 243 10.4.1 Legitimacy of the Right to Participation.......... 246 10.4.2 Justice of the Right to Participation... 249 10.4.3 The Right to Participation and Self-Determination... 251 10.5 Minority Rights and Internal Self-Determination..... 253 10.5.1 Internal Political Self-Determination... 254 10.5.2 Internal Economic Self-Determination..... 255 10.5.3 Internal Social Self-Determination.............. 257 10.5.4 Internal Cultural Self-Determination............. 258 Conclusion........................................... 261 References... 264 11 Putting Together the Pieces... 267 11.1 Framework...................................... 267 11.2 Tools and Preparations... 269 11.3 Results: Internal Self-Determination and Minority Rights... 270 11.4 The Right to Internal Self-Determination of Minorities in Larger Context................................. 273 Conclusion........................................... 276 References... 277

Contents xiii Part IV Conclusion 12 Conclusion... 281 12.1 Traditional and Alternative International Law... 281 12.2 The Right to Internal Self-Determination of Minorities..... 282 12.3 Implications... 284 References... 285 13 Summary... 287 13.1 Framework...................................... 287 13.2 The Argument.............. 288 13.3 The Right to Internal Self-Determination of Minorities..... 291 Annex I: Overview of Minority Rights Provisions in Minority Documents... 293