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FOREIGN INVESTMENT ARBITRATION: A PLACE FOR HUMAN RIGHTS?
Published online by Cambridge University Press: 11 August 2011
Abstract
The protection of foreign investment by way of treaties and arbitration has recently suffered attacks on its legitimacy. The article turns on human rights concerns in this context and analyses what legal mechanisms and arguments can be employed to ease the tension between investment protection and human rights. Harmonization in this regard finds two key entry points: first, at the inter-State level of investment agreements, and secondly, at the intra-State level of the foreign investment contract. At the first level, human rights considerations, particularly concerning economic and social rights, can be brought to bear by way of their systematic integration qua treaty interpretation. The article subjects this inroad to close scrutiny but concludes that, while it possesses considerable merits and has attracted a certain attention (albeit still more in the academic world than in that of arbitration practice), it remains an approach ex post, possibly leaving excessive discretion to arbitrators. Thus, at the second level, already at the pre-investment stage, efforts should be made to recast investors' “legitimate expectations” under foreign investment contracts by including a “human rights audit” as part of the due diligence to be conducted by the investor and the host State, to survey the host State's human rights treaty commitments and domestic methods for implementing these commitments. The primary objective of this audit would thus be to fully include the prospective host State's international obligations as part of the body of applicable law and thus create a better map of the landscape of an investor's “legitimate expectations”.
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References
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21 See H Mann, International Investment Agreements, Business and Human Rights: Key Issues and Opportunities, (International Institute for Sustainable Development, February 2008), 25–29. For relevant arbitral case law see Mondev International Ltd v United States of America, ICSID Case No. ARB/(AF)/99/2, Award of October 11, 2002, para. 144; Técnicas Medioambientales Tecmed, SA v United Mexican States, ICSID Case No ARB (AF)/00/2, Award of May 29, 2003, at paras 116–122; Azurix Corp v The Argentine Republic, ICSID Case No. ARB/01/12, Award of July 14, 2006, paras. 311–312; Methanex v United States of America, (NAFTA/UNCITRAL) Final Award of 3 August 2005; CMS Gas Transmission Company v The Argentine Republic, ICSID Case No. ARB/01/8, Award of May 12, 2005, paras 114–121.
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24 In the present era of foreign investment which is increasingly being linked to more comprehensive regional and multilateral trade umbrellas, this problem of ‘moving targets’ between investment protection and compliance with economic and social rights does not appear solely in the traditional North-South binary of ‘capital-exporting’ developed States and ‘capital-importing’ developing States, but also to South-South and North-North trade cooperative structures and investment relationships. For a description of these trends in investment treaty rulemaking, see United Nations Conference on Trade and Development, Investor-State Dispute Settlement and Impact on Investment Rulemaking (2007), 3–9 <http://www.unctad.org/en/docs/iteiia20073_en.pdf> accessed 4 May 2011; S Rose-Ackerman, ‘The Global BITs Regime and the Domestic Environment for Investment’ in Sauvant and Sachs (n 4) 311–321. In the past decade, developing economies have also become sources of foreign investment for the least developed countries (LDCs). See United Nations Conference on Trade and Development, Foreign Investment in LDCs: Lessons Learned from the Decade 2001–2010 and the Way Forward (2011) 10 <http://www.unctad.org/en/docs/diaeia2011d1_en.pdf> accessed 4 May 2011.
25 Remedies include arbitration (institutional and ad hoc), which is automatically enforced by national courts of States parties to either the 1965 Convention on the Settlement of Investment Disputes between States and Nationals of Other States (otherwise known as the ICSID Convention) and the 1958 New York Convention on Recognition and Enforcement of Arbitral Awards (for UNCITRAL and other non-ICSID arbitrations). Other dispute settlement mechanisms include conciliation, mediation, fact-finding boards, and direct negotiations. For an analysis of the policy considerations and substantive features of these various mechanisms, see United Nations Conference on Trade and Development, Investor-State Disputes: Prevention and Alternatives to Arbitration (2010) 10–64 <http://www.unctad.org/en/docs/diaeia200911_en.pdf> accessed 4 May 2011; R Doak Bishop, J Crawford, and WM Reisman, Foreign Investment Disputes: Cases, Materials, and Commentary (Kluwer Law, The Hague, 2005) 317–490.
26 See United Nations Conference on Trade and Development, ‘Denunciation of the ICSID Convention and BITs: Impact on Investor-State Claims’, IIA Issues Note No. 2 (December 2010) <http://www.unctad.org/en/docs/webdiaeia20106_en.pdf> accessed 3 May 2011.
27 See J Salacuse and N Sullivan, P, ‘Do BITs Really Work? An Evaluation of BITs and their Grand Bargain’ (2005) 46 Harv J Int'l L 67Google Scholar.
28 As we are reminded in the 2009 arbitral award in Phoenix Action Ltd v Czech Republic, investment protection ‘should not be granted to investments made in violation of the most fundamental rules of protection of human rights … ’. Phoenix Action Ltd v Czech Republic, ICSID Case No ARB/06/5, April 15, 2009, para 78.
29 See S Kroll, ‘The Renegotiation and Adaptation of Investment Contracts’ in Norbert Horn and Stefan Kroll (eds), Arbitrating Foreign Investment Disputes: Procedural and Substantive Legal Aspects (Kluwer Law, The Hague, 2004) 425–470.
30 United Nations Conference on Trade and Development, Investor-State Dispute Settlement and Impact on Investment Rulemaking (2007) 71 <http://www.unctad.org/en/docs/iteiia20073_en.pdf> accessed 4 May 2011.
31 See similar or identical language in ICSID Convention art 42(1); North American Free Trade Agreement (NAFTA) art 1131; Energy Charter Treaty (ECT), art 26(6); Association of Southeast Asian Nations (ASEAN) Comprehensive Investment Agreement, art 40(1); Japan-Mexico Free Trade Agreement, art 84(1). Model BITs also contain similarly broad language. See 2004 Canada Model BIT, art 40(1); 2007 Colombia Model BIT art XI; 2008 Germany Model BIT art 7(1); 2003 India Model BIT art 12(1); 2004 US Model BIT arts 30(1) and (2); IISD Model International Agreement on Investment for Sustainable Development, art 48(1).
32 See 2004 Canada Model BIT, art 11 (Health, Safety and Environmental Measures); 2004 US Model BIT, art 12 [Investment and Environment] and art 13 [Investment and Labor].
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35 The literature is rife with observations about the potential for abuse of the ‘public policy’ ground for denial of recognition and enforcement in art V(2)(b) of the 1958 New York Convention on Recognition and Enforcement of Arbitral Awards. See e.g, J Paulsson, ‘The New York Convention in International Practice: Problems of Assimilation’ in M Blessing (ed), The New York Convention of 1958: A collection of reports and materials delivered at the ASA conference held in Zurich on 2 February 1996 (Swiss Arbitration Association, 1996), at 108 (noting that it is art V which ‘is most prone to misinterpretation and most open to abuse by national courts, displaying skepticism of non-national sources of law and bias against foreigners who wish to enforce awards in their territories’). In Russia, the public policy exception is a ‘major issue,’ due to a lack of uniform interpretation of the term: Nacimiento, Patricia, ‘Recognition and Enforcement of Arbitral Awards in Russia’ (2010) 4 Journal of International Arbitration 294Google Scholar.
36 Kasiliki/Sedudu Island (Botswana v Namibia) (Judgment) [1999] ICJ Rep 1045 (Declaration of Judge Rosalyn Higgins, para 2).
37 Legal Consequences for States of the Continued Presence of South Africa in Namibia (South West Africa) notwithstanding Security Council Resolution 276 (1970), Advisory Opinion, [1971] ICJ Rep 16, 28–30, paras 45–49.
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40 Case Concerning Right of Passage over Indian Territory (Preliminary Objections) [1957] ICJ Rep 142; Corfu Channel case (Judgment) [1949] ICJ Rep 24; Anglo-Iranian Oil Co case (Jurisdiction) Judgment of July 22 1952, [1952] ICJ Rep 104; Lauterpacht, H, ‘Restrictive Interpretation and the Principle of Effectiveness in the Interpretation of Treaties’ (1949) 26 Brit Yb Int'l L 67Google Scholar.
41 Oil Platforms (Islamic Republic of Iran v United States of America) Judgment, [2003] ICJ Rep paras 73–78.
42 Oil Platforms (Islamic Republic of Iran v United States of America) Judgment [2003] ICJ Rep para 41.
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44 This term was coined by ILC member (now ICJ Judge) Xue Hanqin during a more recent Commission debate on the significance of art 31(3)(c). ILC, Final Report of the Study Group on Fragmentation of International Law: Difficulties Arising from the Diversification and Expansion of International Law, para 420, UN Doc A/CN.4/L.682 (13 April 2006) (prepared by Martti Koskenniemi).
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49 Article 18 of the Vienna Convention on the Law of Treaties.
50 See further discussion in Simma and Kill (n 33) 701–702.
51 International Covenant on Economic, Social and Cultural Rights, 19 December 1966, United Nations, Treaty Series, vol. 993, p. 3, <http://www2.ohchr.org/english/law/cescr.htm> accessed 30 April 2011. The Covenant [hereafter ‘ICESCR’] has been ratified or acceded to by 160 States Parties. <http://treaties.un.org/Pages/ViewDetails.aspx?src=TREATY&mtdsg_no=IV-3&chapter=4&lang=en> accessed 30 April 2011. International Convention on the Elimination of All Forms of Racial Discrimination, 21 December 1965, United Nations, Treaty Series, vol. 660, p. 195 <http://www.unhcr.org/refworld/docid/3ae6b3940.html> accessed 3 May 2011. CERD has 174 Parties. <http://treaties.un.org/pages/ViewDetails.aspx?src=TREATY&mtdsg_no=IV-2&chapter=4&lang=en> accessed 3 May 2011.
52 Under conditions discussed in Simma and Kill (n 33).
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55 ibid para 9.
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59 General Comment No. 14 (2000), The right to the highest attainable standard of health (article 12 of the International Covenant on Economic, Social and Cultural Rights), E/C.12/2000/4, 11 August 2000, para. 50 <http://daccess-dds-ny.un.org/doc/UNDOC/GEN/G00/439/34/PDF/G0043934.pdf?OpenElement> accessed 15 April 2011.
60 See United Nations Conference on Trade and Development, Investor-State Dispute Settlement and Impact on Investment Rulemaking (2007) 76.
61 See (n 59) para 51.
62 General Comment No. 15 (2002), The right to water (arts 11 and 12 of the International Covenant on Economic, Social and Cultural Rights), E/C.12/2002/11, 20 January 2003, <http://daccess-dds-ny.un.org/doc/UNDOC/GEN/G03/402/29/PDF/G0340229.pdf?OpenElement> accessed 15 April 2011.
63 ibid para 44(b)(ii).
64 Methanex v United States, UNCITRAL Case No. ARB/98/3 (2005), at Part IV, Chapter D, p 7; Sedco Inc v Iran, 9 Iran-US Claims Tribunal Reports; Tecnicas Medioambientales Tecmed SA v. Mexico, ICSID Case No ARB (AF)/00/2, Award, 29 May 2003; Feldman v Mexico, ICSID Case No. ARB(AF)/99/1, Award on the Merits, 16 December 2002. See also MTD Equity Sdn Bhd & MTD Chile SA Chile v Chile, ICSID Case NoARB/01/7, Decision on Annulment of the ad hoc committee, 21 March 2007; Saluka Investments BV v Czech Republic (Saluka case), PCA, UNCITRAL, Partial Award 17 March 2006; Metalclad v Mexico, ICSID Case No. ARB (AF)/97/1, Award on the Merits, 16 December 2002; Tecmed SA v Mexico, supra; Compania de Desarrollo de Santa Elena SA v Costa Rica, ICSID Case No. ARB/96/1, Award on the Merits, 17 February 2000, para. 72.
65 See U Kriebaum, ‘Is the European Court of Human Rights an Alternative to Investor-State Arbitration?’ in Dupuy, Francioni & Petersmann (n 12) 219–245; Kriebaum, U, ‘Regulatory Takings: Balancing the Interests of the Investor and the State’ (2007) 8 Journal of World Investment & Trade 717–744CrossRefGoogle Scholar; Ronald Lauder v Czech Republic, UNCITRAL Award, 3 September 2001, para 292; Mondev International Ltd v United States of America, ICSID Case No ARB(AF)/99/2, Final Award, 11 October 2002, at para 116; European Convention of Human Rights, Article 1 of Protocol I (‘Every natural or legal person is entitled to the peaceful enjoyment of its possessions. No one should be deprived of his possessions except in the public interest and subject to the conditions provided for by the law and by the general principles of international law. The proceeding provisions shall not, however, in any way impair the right of a state to enforce such laws as it deems necessary to control the use of property in accordance with the general interest or to secure the payment of taxes or other contributions or penalties.’); Himpurna California Energy Ltd. (Bermuda) v PT (Gersero) Perusahaan Listruik Negara, 14(12) Mealey's International Arbitration Report A-1 (1990) A-50.
66 Mondev International Ltd v United States of America, ICSID Case No. ARB/(AF)/99/2, Award of October 11, 2002, para 144.
67 See (n 54) para 10.
68 ibid paras 10 and 12.
69 See interpretative controversies in LG&E Energy Corp v Argentina, Decision on Liability, ICSID Case No ARB/02/1 (3 October 2006); LG&E Energy Corp v Argentina, Award, ICSID Case No ARB/02/1 (July 25, 2007); Cont'l Cas Co v Argentina, Award, ICSID Case No ARB/03/9, Sept 5, 2008; Sempra Energy International v Argentine Republic, ICSID Case No. ARB/02/16, Decision on the Argentine Republic's Request for Annulment of the Award, 29 June 2010; Enron v Argentine Republic, ICSID Case No. ARB/01/3, Decision on the Argentine Republic's Request for Annulment of the Award, 30 July 2010; Desierto, DA, ‘Necessity and ‘Supplementary Means of Interpretation of Non-Precluded Measures in Bilateral Investment Treaties’ (2010) 31 Un Pa J Int'l L 3, 827–934Google Scholar.
70 See (n 62) para 44(c)(vii).
71 Mihaly International Corporation v Democratic Socialist Republic of Sri Lanka, ICSID Case No ARB/00/2 (1999); Zhinvali Development Limited v Georgia, ICSID Case No ARB/00/1, unpublished. See also Fedax NV v Republic of Venezuela, ICSID Case No ARB/96/3 (1998), which involved promissory notes; Cesoslovenska Obchodni Banka AS v The Slovak Republic, ICSID Case No ARB/97/4 (1999), which involved a financing loan extended as part of a government's privatization program; Joy Mining Machinery Limited v. The Arab Republic of Egypt, ICSID Case No. ARB/03/11, Award of 6 August 2004, at paras 49–50; Salini Costruttori SpA and Italstrade SpA v Kingdom of Morocco, Jurisdiction, (2001) 6 ICSID Rep 398.
72 Report of the High Commissioner for Human Rights, Human rights, trade and investment, E/CN/4/Sub.2/2003/9, 2 July 2003, para 24 <http://daccess-dds-ny.un.org/doc/UNDOC/GEN/G03/148/47/PDF/G0314847.pdf?OpenElement> accessed 15 April 2011.
73 Biwater Gauff v Tanzania, ICSID Case No ARB/05/22, Award, 24 July 2008, <http://icsid.worldbank.org/ICSID/FrontServlet?requestType=CasesRH&actionVal=showDoc&docId=DC770_En&caseId=C67> accessed 15 April 2011.
74 United Nations Conference on Trade and Development, Investor-State Dispute Settlement and Impact on Investment Rulemaking (2007) 26. See SGS Societé Générale de Surveillance SA v Islamic Republic of Pakistan, International Arbitration Report, Vol 18, # 9, September 2003, in contrast to SGS Societé Générale de Surveillance SA v Republic of the Philippines, ICSID Case No ARB/02/6, Decision of the Tribunal on Objections to Jurisdiction, January 29, 2004.
75 See Leader, S, ‘Human Rights, Risks, and New Strategies for Global Investment’ (2006) 9 Journal of International Economic Law 3CrossRefGoogle Scholar.
76 ‘Legitimate expectations of investors’ are a crucial element in determining a host State's breach or compliance with the fair and equitable treatment (FET) standard in international investment treaties. Tecmed v Mexico introduced the concept of ‘basic expectations that were taken into account by the foreign investor to make the investment’, as part of the calculus of elements to determine breach or compliance with the FET standard. (Tecmed v Mexico (n 64) para 154.) The arbitral tribunal in CMS Gas accepted the Tecmed v Mexico characterization of investor expectations as a requirement involving regulatory consistency and transparency: ‘[t]he foreign investor expects the host State to act in a consistent manner, free from ambiguity and totally transparently in its relations with the foreign investor, so that it may know beforehand any and all rules and regulations that will govern its investments.’ CMS Gas (n 21) paras 273–277. For the most part, this element has been treated as an open-textured phrase left to the subjective determination of arbitrators according to the circumstances of each case. The FET clause in NAFTA Article 1105 has accepted some innovations into the determination of investor expectations through the NAFTA Commission's 31 July 2001 Note of Interpretation, which dissociates the FET clause from the 1920s Neer claims standard requiring prior proof of a State's bad faith, before it may be deemed to have violated the international minimum standard in the treatment of aliens within its territory. Note of Interpretation of the NAFTA Free Trade Commission, 31 July 2001, <http://www.international.gc.ca/trade-agreements-accords-commerciaux/disp-diff/NAFTA-Interpr.aspx?lang=en> accessed 4 May 2011; Neer Claim, United Nations Reports of International Arbitral Awards (1926), IV, p 60–61. Accordingly, the tribunal in GAMI Investments Inc v Mexico held that ‘[a] claim of maladministration would likely violate [NAFTA] Article 1105 if it amounted to an ‘outright and unjustified repudiation’ of the relevant regulations.' GAMI Investments Inc v Mexico, UNCITRAL, Final Award, 15 November 2004, para 103.
77 Tecmed award (n 64) para 154.
78 Stabilization clauses may take the form of intangibility clauses (which state that the contract can only be modified with the consent of the parties); freezing clauses (which provide that the applicable domestic law for the contract is frozen in time as the law in force at the date of the conclusion of the contract, and which cannot be affected by subsequent legislation inconsistent with that initial body of law); consistency clauses (which apply future domestic legislation of the host State only if it is consistent with the investment contract); fiscal or tariff stabilisation clauses (which fix the host State's tax or tariff regimes affecting the investment); and economic equilibrium clauses (which link the alteration of the terms of the contract to the possibility of periodic contractual renegotiation, to restore, as closely as possible, the original economic guarantees of the contract). These clauses are meant to cure the information asymmetry between foreign investors and host States. See L Cotula, ‘Foreign Investment Contracts’ (August 2007) International Institute for Environment and Development Briefing Paper No. 4.
79 See Canada 2004 Model BIT, art 19.
80 S Walker, ‘Human Rights Impact Assessments of Trade-Related Policies’, in MW Gehring and M Claire Cordonier-Segger, Sustainable Development in World Trade Law (Kluwer Law, The Hague, 2005) 217–256.
81 Murray v The Charming Betsy 6 US (2 Cranch 64) (1804): ‘It has also been observed that an act of Congress ought never to be construed to violate the law of nations if any other possible construction remains...’
82 See sample standard stabilization clauses in production sharing agreements and concession contracts in Bishop, Crawford, & Reisman (n 25) 286–307.
83 See 2003 Japan-Vietnam BIT, art 6.
84 See Chile-Korea Free Trade Agreement, Chapter on Investment, art 10.9.
85 On the conceptual and empirical assessment of political or regulatory risk, see WJ Henisz, Politics and International Investment: Measuring Risks and Protecting Profits (Edward Elgar Publishing Limited, Kent, 2002) 5–27; P Harms, International Investment, Political Risk, and Growth (Kluwer Law, The Hague, 2000) 57–114.
86 See the July 2006 Equator Principles <http://www.equator-principles.com> accessed 15 April 2011.
87 See ‘Chapter 2: Petroleum Agreements and Bidding’ in F Jahn, M Cook, M Graham (eds), Hydrocarbon Exploration and Production (Elsevier Science, 2011).
88 Cotula (n 78). See also Cotula, L, ‘Reconciling regulatory stability and evolution of environmental standards in investment contracts: Towards a rethink of stabilization clauses’ (2008) 1 Journal of World Energy Law & Business 2, 158–179CrossRefGoogle Scholar.
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