Institute of Foreign and Comparative Law

Some remarks on the international legal personality of individuals

Author(s): Petra Perišiæ
Source: The Comparative and International Law Journal of Southern Africa , Vol. 49,
No. 2 (JULY 2016), pp. 223-246
Published by: Institute of Foreign and Comparative Law

Stable URL: https://www.jstor.org/stable/10.2307/26367600

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Some remarks on the international
legal personality of individuals
*
Petra Perišiæ

Abstract
This article analyses the shift from the state-centric system of international
law to the system in which other entities such as intergovernmental
organisations, and individuals enter the sphere of international legal
personality. The main focus falls on the influence of human rights
development and the emergence of individual criminal responsibility on the
international legal personality of an individual. In spite of the significant
changes in the domain of international legal personality, the majority view
remains that individuals have not gained the status of international law
subjects. This conclusion is based on the notion that individuals, by having
rights and duties under international law, acquire some form of international
legal personality in certain areas, but that it is states which make this
possible. As much as this holds true, the growing role of the individual in
international law should be properly acknowledged. Although individuals
are not likely ever to become international law subjects equal to states, such
identity is not necessary for their recognition as international law subjects.

INTRODUCTION
The position of the individual in international law has long been debated.
Legal commentators range from those who, like Scelle or Duguit, opine that
an individual not only is the subject of international law, but is the sole
subject of that law; to those who deny individuals any legal personality.
There has also been a wide range of scholars in-between who recognise
individuals as the beneficiaries of rights and bearers of obligations, but
believe that individuals lack some of the characteristics essential for
international law subjects.

Until the 20th century, international law was exclusively preoccupied with
states as its most important subjects. The principal purpose of international

*
PhD. Assistant Professor: International Law Chair, Faculty of Law University of Rijeka,
Croatia.

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224 XLIX CILSA 2016

law was to secure coexistence and to keep states apart in peace by

restraining and restricting state action.1 A traditional positivist approach,
which was particularly dominant in the 19th century, has been associated
with an emphasis on state will – in the absence of central authority, law can
only be based on the consent of states.2 Although states still enjoy their
status as the preeminent subjects of international law, they are no longer the
sole subjects of that law. In light of numerous changes in the second half of
the 20th century in political, economic and other domains, some new entities
have entered the realm of international legal personality. One of the most
significant of these is the international organisation, which is nowadays
undoubtedly an international law subject – although admittedly differing
from the state.

It was the development of human rights law in the second half of the 20th
century that most notably raised the issue of the international legal
personality of the individual. In contrast to the historical notion of human
rights – as rights falling within the domestic jurisdiction of a particular state
– the Charter of the United Nations (the Charter) and documents
subsequently adopted, introduced the protection of human rights to the
international arena. Some of these documents not only granted human rights,
but also contained concomitant procedural provisions governing how the
rights should be implemented. Apart from their listing in treaties, most of the
human rights have by now become part of customary international law, some
of them even acquiring the status of jus cogens.

In this article I analyse how the status of the individual has changed over
time and what the results of that change are when it comes to international
legal personality. In particular, I examine what rights and obligations
individuals have in certain fields of international law. Relevant treaties and
other international documents, as well as the decisions of international
bodies are analysed. Finally, I offer a conclusion as to the current status of
the individual in international law.

INTERNATIONAL PERSONALITY
Subjects of international law are commonly understood as entities which
possess rights and obligations and which have the capacity to initiate legal

1
Menon ‘The international personality of individuals in international law: a broadening
of the traditional doctrine’ (1992) 1 Journal of Transnational Law and Policy 151.
2
Parlett The individual in the international legal system: continuity and change in
international law (2011) 7.

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 International legal personality of individuals 225

actions within the international legal system. This capacity includes bringing
International claims, or bearing the responsibility for a breach of
international law obligations. Some authors believe that international law
subjects should be able to take part in the creation and modification of norms
of international law.3 If a specific entity satisfies the criteria above, it is
considered to be a legal person which enjoys legal personality. However,
some authors point out that even if certain of the characteristics of
international law subjects are lacking, there can still be a limited legal
personality, dependent on the agreement or acquiescence of recognised legal
persons and opposable on the international plane only to those in agreement
or acquiescent.4 Others regard the term ‘international persons’ as inadequate
and claim that it should be replaced by terms such as ‘participants’ or
‘actors’.5

In the past, states were considered the only subjects of international law.
This reasoning was explained by the fact that ‘the law of nations is based on
the common consent of individual states, and not of individual human
beings’, and therefore states were the sole and exclusive subjects of
international law.6 The creation of states and their emergence as subjects of
international law is not dependent on the will of any other actor, nor can
their legal position be changed without or against their will.7 The creation
of a state is a factual rather than a legal question. Three preconditions for the
creation of a state must be met – territory, population and organised political
authority – for a state to exist.8 On occasion, the capacity to enter into
relations with other states is identified as a precondition for the state’s
international personality.9 In spite of the fact that the latter requirement
might imply that recognition by other states is a necessary element for the
existence of a state, this is not the case. The recognition by other states is
considered to have a declaratory character, which means that a state exists

3
See, for example: Degan Medjunarodno pravo (2011) 205.
4
Brownlie Principles of public international law (4ed 2003) 57.
5
Higgins Problems and process: international law and how we use it (1994) 50.
6
Oppenheim International law (2ed 1912) par. 13, available at:
http://www.gutenberg.org/files/41046/41046-h/41046-h.htm# 107 (last accessed 15
March 2015).
7
Orakhelashvili ‘The position of the individual in international law’ (2001) 31 California
Western International Law Journal 246.
8
‘The Arbitration Commission of the Peace Conference on Yugoslavia, Opinion No. 1’
(1992) 31 International Legal Materials 1488.
9
Montevideo Convention on Rights and Duties of States 1933 art 1, 165 League of
Nations Treaty Series 19.

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226 XLIX CILSA 2016

regardless of such recognition, provided that the three core requirements

above have been met.

As I have indicated, states – as unquestionably the oldest and the most

important international law subjects – were long considered the only
subjects of international law. During the 20th century, this notion gradually
started to change, as new significant actors began to emerge onto the
international plane. Following this trend, legal commentators started to
advance the idea that actors other than states might be considered
international law subjects. Yet, not all of the writers were ready to
acknowledge the emergence of new actors as bearers of international legal
personality. Among those who persisted in advocating the idea that states
were the only subjects of international law most vociferously, were the
Soviet authors.10 It was not until the close of the 20th century that these
authors accepted the possibility of other entities enjoying the status of
international law subjects.11

Indeed, during the 20th century – and especially after the Second World War
and the adoption of the Charter – new entities entered the realm of
international legal personality. This in no way meant that they were identical
to states. As the International Court of Justice (ICJ) found in the Reparations
case, ‘the subjects of law in any legal system are not necessarily identical in
their nature, or in the extent of their rights, and their nature depends upon the
needs of the Community.’12 While states possess full international
personality as an inherent attribute of their statehood, all other entities
possessing personality do so only to the extent that states allow, that is, their
personality is derived from states.13 Consequently, certain international law
subjects can, unlike states, have limited or no procedural capacity in sense
that they cannot, either completely or partially, undertake actions to acquire
rights or undertake obligations. There can be a whole range of limitations on
procedural capacity – limitations of active and passive right of legation, of
the conclusion of treaties, or, until war became prohibited in international
law, of jus belli gerendi.14

10
Kovler ‘The individual as a subject of international law (discussion revisited)’ (2013) 2
Law of Ukraine Legal Journal 40.
11
Müllerson ‘Human rights and the individual as subject of international law: a Soviet
view’ (1990) 1 European Journal of International Law 33.
12
Reparation for Injuries suffered in the Service of the United Nations, Advisory Opinion
ICJ Reports 1949 179.
13
Wallace International law (5ed 2005) 60.
14
Andrassy et al Medjunarodno pravo, part I (2010) 70.

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 International legal personality of individuals 227

It is, therefore, widely accepted that there are different international law
subjects on the international scene, each possessing its own characteristics
in terms of legal and procedural capacity. It must be noted, however, that not
each entity performing on the international scene will be a legal person,
since for the international personality to exist there must be both
participation and some form of community acceptance.15

Alongside states, international intergovernmental organisations have

emerged as distinct subjects of international law. The most significant
international organisation having an objective legal personality is the United
Nations, as confirmed by the ICJ in the Reparations case above. Unlike
states, which are created independently of the will of any other actor,
international organisations are created by treaty concluded between states.
Functions, membership, structure and other relevant features of the
organisations are spelled out in these founding treaties. However, despite the
fact that the creation and functioning of the organisation is based on the
states’ will, the same cannot be said of its dissolution. In order to create an
organisation, each member state must consent to its establishment. However,
once an organisation has been created, it has a life of its own, determined by
the provisions of its founding document. In that sense, the charter of an
organisation will typically contain clauses requiring a certain majority of
member states for its dissolution or for any amendment to its charter. This
means that not every state will have to consent to the organisation’s
dissolution before it may be dissolved. On the other hand, when a single
state withdraws from an organisation, the withdrawing state simply stops
being a member of the organisation – it does not affect the objective legal
personality of the organisation, which subsists in the absence of that
member.16

Belligerents and insurgents may, under certain circumstances, also enjoy a

measure of legal personality. Apart from being able to enter into valid
agreements, they are bound by the rules of international law with respect to
the conduct of hostilities, may be entitled to the protection accorded by these
rules, and may in due course be recognised as governments.17

15
Shaw International law (4ed 1997) 138 139.
16
See Orakhelashvili n 7 above at 247.
17
Id at 173.

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228 XLIX CILSA 2016

An entity that might possess international personality is a national liberation

movement. For example, the Palestinian Liberation Organisation (PLO) was
granted observer status at the United Nations. The 1974 General Assembly
Resolution 3237 (XXIX) (GA res), invited the PLO to participate in the
sessions and the work of the GA as an observer.18 Granting such a status
does not necessarily amount to recognising the legal personality of such an
entity. Although in the case of the PLO a conclusion on the existence of such
personality can be deduced from the ICJ Advisory Opinion, in which the
court – in deciding whether as a party to the Agreement between the UN and
the USA on the Headquarters of the United Nations, the US was under an
obligation in terms of article 21 of the Headquarters Agreement – concluded
that the United States was bound to respect the obligation to have recourse
to arbitration under the Headquarters Agreement, even in its dealings with
the PLO and regardless of its non-recognition of the organisation.19

Two other entities enjoying permanent observer status at the UN – the Holy
See and the Sovereign Order of Malta20 – are considered to have
international personality in that they enter into relations with other entities
on the international plane. Unlike these two entities which are closely akin
to states, the International Committee of the Red Cross (ICRC) is considered
to be the subject of international law of a completely different character. It
owes its legal personality to its significant status under international
humanitarian law. The ICRC, therefore, represents an exception to the
general rule that only intergovernmental organisations can be international
law subjects.

The above subjects are today, undoubtedly regarded as subjects of

international law. Apart from these, there are other entities which have some
characteristics of international legal personality and are consequently
considered to be potential candidates for international legal personality.

18
In Resolution 43/177 of 15 December 1988, the General Assembly acknowledged the
proclamation of the State of Palestine by the Palestine National Council on 15 November
1988 and decided that the designation ‘Palestine’ should be used in place of the
designation ‘Palestine Liberation Organization’ in the United Nations system. On 29
November 2012, the General Assembly granted Palestine non-member observer state
status at the United Nations. See: A/RES/43/177; A/RES/67/19.
19
Applicability of the Obligation to Arbitrate under Section 21 of the United Nations
Headquarters Agreement of 26 June 1947, Advisory Opinion, ICJ Reports 1988, par 57.
20
See Nanni v Pace and the Sovereign Order of Malta (1935) 8 International Law Review
2.

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 International legal personality of individuals 229

These entities include, for example, non-governmental organisations

(NGOs), international public companies, transnational corporations, and
individual persons.21
In recent decades there has been a growing tendency among legal writers to
discuss the issue of legal personality for an individual person. Most of the
international law textbooks do not include individuals among existing
subjects of international law.22 The majority discuss the position of an
individual within the sphere of international legal personality so pointing to
their distinct status. In the following chapters I analyse how the position of
an individual has changed during the previous decades and whether such a
change has resulted in individuals becoming international law subjects.

INDIVIDUALS IN INTERNATIONAL LAW – GENERAL REMARKS

In the past, the state-centred system was based on the differentiation between
those entities which have rights and duties and those which do not. States
had rights and duties, and that is why they were classified as international
law subjects, while all the others – including individuals – who did not have
rights and duties, were merely ‘objects’ of international law. As Higgins has
correctly observed, individuals were as much objects as were ‘boundaries’,
‘rivers’ or ‘territory’.23

The traditional object theory of the individual in international law regarded

individuals as incapable of being international law subjects in that they had
no rights or duties under international law, they could not invoke it for their
protection, they could not violate its rules, and they had no international
right or claim against states. Only the nationals of a particular state could be
protected against states which violated their rights, but then only if the
violating state was not their state of nationality.24 Under the umbrella of
diplomatic protection, an individual who suffered a violation of his/her
rights by a state other than his/her own, could have his or her rights
protected only if his or her own state brought a claim against the violating
state. The claim and the damage suffered by the individual were regarded as
21
See Shaw n 15 above at 175 176. See also: Hickey ‘The source of international legal
personality in the 21st century’ (1997) 2 Hofstra Law and Policy Symposium 3 9.
22
For authors who do include individuals among the international law subjects, see:
Nijman The concept of international legal personality – an inquiry into the history and
theory of international law (2004) 473; Kaczorowska-Ireland Public international law
(5ed 2015) 172 194; Trindade ‘The historical recovery of the human person as subject
of the law of nations’ in The access of individuals to international justice (2011) 15.
23
See Higgins n 5 above at 49.
24
Manner ‘The object theory of the individual in international law’ (1952) 46 American
Journal of International Law 428 429.

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230 XLIX CILSA 2016

a claim accruing to and injury suffered by the individual’s state of

nationality – as opposed to the individual concerned.25 Consequently, once
the state has taken up a case on behalf of its subject before an international
tribunal, in the eyes of the tribunal the state is the sole claimant.26 Therefore,
in order for an individual to have his or her rights protected under
international law, there must have been a nexus between the individual and
the state of his/her nationality.27 In the absence of such a nexus – for
example in the case of stateless persons – there was no possibility of an
individual protection.

Today, an individual can be protected against both foreign states and his
state of nationality. However, this protection is not granted under general
international law, but rather under treaty law – a treaty that the state in
question has chosen to conclude. And unlike international organisations
created by treaty concluded by states’ will, but which upon their creation
exist as distinct subjects of international law, individuals enjoy benefits
provided by treaties only for so long as states choose to be party to the
treaties granting the benefits.

This aside, an object theory no longer adequately describes the position of

individual in international law. It is commonly accepted nowadays that
individuals can be holders of rights and bearers of obligations. After all,
states are made up of individuals. Treating individuals as objects would
prevent the enforcement of international law against the individuals who are
the intended subjects of the legal obligations. In addition, states are held
internationally liable for the condemned acts of their citizens and are
expected to recompense their citizens injured by violations of international
law.28 Bearing all this in mind, as well as the notion that the essence of
international law has always been the ultimate concern of the human being,29
an object theory is now considered outdated.

It was mostly, but not exclusively, the human rights movement that
prompted the change in the notion of the international legal personality of
an individual. In what follows I analyse particular fields in which individuals

25
See Orakhelashvili n 7 above at 247.
26
Mavrommatis Palestine Concessions (Jurisdiction), PCIJ, Ser A, No 2, 1924 6.
27
Nottebohm Case (second phase), Judgment of April 6th, 1955: ICJ Reports 1955 23.
28
See Manner n 24 above at 431.
29
See Shaw n 15 above at 183.

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 International legal personality of individuals 231

do enjoy legal personality, meaning that they come closest to being

recognised as international law subjects.
HUMAN RIGHTS LAW AND THE LEGAL PERSONALITY OF
INDIVIDUALS
It is widely accepted that the development of human rights law has
influenced the evolution of the international legal personality of individuals
the most.

The idea of the protection of human rights originally emerged in the field of
domestic legislation, as in the 1215 Magna Carta of King John in England,
the adoption of the British Bill of Rights in 1689, the Bill of Rights in the
United States Constitution, the French Declaration of the Rights of Man in
1789, and in other laws and declarations.30

On the international plane, one of the early examples of human rights

protection was the abolition of slave trade. The movement for the abolition
of slavery emerged in the 18th century, first in Britain and subsequently in
certain other European countries. After the prohibition of slavery in
domestic legal systems, states started to conclude bilateral agreements, and
in 1926 the Slavery Convention was adopted.31

In the treaties concluded after World War I, the Treaty of Versailles of 1919
and the Polish-German Convention of 1922 relating to Upper Silesia,
individual claimants were allowed access to various mixed arbitral tribunals
set up pursuant to the provisions of these instruments, even against the state
of which they were nationals.32 Similarly, the 1907 Treaty, which established
the Central American Court of Justice, provided the possibility for
individuals to submit their cases to the court.

In this regard, it is also worth mentioning the Jurisdiction of the Courts of

Danzig case of 1928. In its advisory opinion in this case, the Permanent
Court of International Justice found that ‘it cannot be disputed that the very
object of an international agreement, according to the intention of the
contracting Parties, may be the adoption by the Parties of some definite rules
creating individual rights and obligations and enforceable by the national

30
See Menon n 1 above at 168.
31
Text of the Convention available at:
http://www.ohchr.org/EN/ProfessionalInterest/Pages/SlaveryConvention.aspx (last
accessed 24 March 2015).
32
Verma An introduction to public international law (2004) 85.

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232 XLIX CILSA 2016

courts’.33 By reasoning in this manner, the court rejected Poland’s

allegations, according to which the failure to enforce treaty rights not
incorporated into its municipal system would be a matter between the two
states, and not between Poland and individuals who were granted these
rights.

Although the roots of human rights protection were present way before
World War II, it is the end of that war and the adoption of the United
Nations Charter that are considered a starting point for the rapid
development of human rights law. Apart from the Preamble to the United
Nations Charter, which ‘reaffirms faith in fundamental human rights’,34 the
Charter promotes the protection of human rights primarily in two of its
provisions. First, article 1(3) states that one of the purposes of the United
Nations is ‘to achieve international cooperation in solving international
problems of an economic, social, cultural or humanitarian character and in
promoting and encouraging respect for human rights and for fundamental
freedoms for all, without distinction as to race, sex, language, or religion.’
Second, article 55 provides that the United Nations shall promote, among
other things, ‘universal respect for, and observance of, human rights and
fundamental freedoms for all without distinction as to race, sex, language or
religion’. In addition, in article 56 all members of the United Nations pledge
themselves to take joint and separate action in cooperation with the
Organisation for the achievement of the purposes set out in article 55. Apart
from these provisions, which grant the Organisation’s promotion of human
rights, the Charter mentions these rights in several other provisions: article
13(1) provides that the General Assembly will initiate studies and make
recommendations for ‘assisting in the realization of human rights and
fundamental freedoms for all, without distinction as to race, sex, language
or religion’; article 62(2) provides that the Economic and Social Council
‘may make recommendations for the purpose of promoting respect for, and
observance of, human rights and fundamental freedoms for all’; article 76
speaks of ‘encouraging respect for human rights and fundamental freedoms
without distinction as to race, sex, language or religion’.

The Charter provisions on human rights refer to the Organisation’s

obligation to grant those rights. Although the Organisation is an international
law subject separate from its member states, it is actually the states that

33
Jurisdiction of the Courts of Danzig, Advisory Opinion, 1928 PCIJ (ser B) No 15 (3 March).
34
United Nations Charter, available at: http://www.un.org/en/documents/charter/ (last
accessed 24 March 2015).

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 International legal personality of individuals 233

‘pledge themselves’ to take an action for the achievement of the respect for
human rights, as indicated in article 55 of the Charter. Whether a ‘pledge’
corresponds to an ‘obligation’, might be a matter of controversy.35 However,
the wording of article 6 of the Charter, which provides for the possibility of
a United Nations’ member state to be expelled from the Organisation where
it persistently violates principles in the Charter, among which are human
rights, supports the conclusion that the respect for human rights is indeed an
obligation resting on states.

However, it must be said that the Charter provisions guaranteeing the respect
for human rights potentially contradict some other Charter provisions,
notably those banning the use of force36 and intervention in the internal
affairs of states.37 The Charter allows states to use force only in self-defence
and with the authorisation of the Security Council.38 However, the practice
shows that in times of armed conflict – in which grave violations of human
rights occur – the permanent members of the Security Council cannot agree
on how to react, resulting in the council being deadlocked by veto. Absent
the authorisation of the Security Council, it is difficult to see how the human
rights can be protected without violating the Charter provisions on the use
of force.

The same problem arises with the Organisation’s obligation not to intervene
in the internal affairs of states unless it acts under Chapter VII of the
Charter. The problem of reconciling these potentially opposing obligations
has existed ever since the adoption of the Charter. The principle of
‘responsibility to protect’ (R2P) was intended to resolve the discrepancy
between these divergent obligations, but it is the majority opinion that the
R2P principle merely emphasises that the moral obligation rests on states to
react to grave breaches of human rights, and introduces nothing new as
regards reconciling divergent states’ legal obligations.39

Another human rights document within the United Nations system is the
Universal Declaration of Human Rights, adopted by the General Assembly

35
See Parlett n 2 above at 304.
36
Article 2(4) of the Charter.
37
Article 2(7) of the Charter.
38
Chapter VII of the Charter.
39
On the ‘responsibility to protect’, see: Perišiæ ‘Responsibility to protect – an emerging
norm of international law?’ (2013) 2/9 Academic Journal of Interdisciplinary Studies
443.

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234 XLIX CILSA 2016

in 1948.40 It encompassed civil and political, as well as economic, social and

cultural rights. As it was adopted ‘merely’ as a declaration, it has not created
a legal obligation. Today, however, there is no doubt that the Declaration
principles do have a binding character, although disagreement persists on
two questions. Firstly, do all of the Declaration provisions have a binding
character, or only certain of them; and second, does the obligatory nature of
the Declaration derive from its being an authoritative interpretation of the
United Nations Charter provisions on human rights, or does it derive from
its status of general principles of law, or from its forming a part of
customary law?41

In 1966 two legally binding instruments were adopted: The International

Covenant on Civil and Political Rights (ICCPR),42 and the International
Covenant on Economic, Social and Cultural Rights (ICESCR).43 The First
Optional Protocol to the ICCPR is of a particular importance to our analysis
because it provides that

a state party to the Covenant that becomes a party to the present Protocol
recognizes the competence of the Committee to receive and consider
communications from individuals subject to its jurisdiction who claim to be
victims of a violation by that state party of any of the rights set forth in the
Covenant. 44

Individuals who claim that any of their rights enumerated in the Covenant
have been violated, and who have exhausted all available domestic remedies,
may submit a written communication to the Committee for consideration.45
The procedure before the Committee is not a judicial one and the views of
the Committee are not binding on states. It, however, does create an

40
Text of the Declaration available at: http://www.un.org/en/documents/udhr/ (last accessed
27 March 2015).
41
Buergenthal & Shelton & Steward Medjunarodna ljudska prava u sazetom obliku (2011)
37.
42
Text of the Covenant available at:
http://www.ohchr.org/en/professionalinterest/pages/ccpr.aspx (last accessed 27 March
2015).
43
Text of the Covenant available at:
http://www.ohchr.org/en/professionalinterest/pages/cescr.aspx (last accessed 27 March
2015).
44
Article 1 of the Optional Protocol. Text of the Protocol available at:
http://www.ohchr.org/EN/ProfessionalInterest/Pages/OPCCPR1.aspx (last accessed 27
March 2015).
45
Id at art 2.

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 International legal personality of individuals 235

opportunity for an individual to appear before an international body and

claim the violation of his or her rights and seek redress.

The ICESCR did not – unlike the ICCPR – establish a Committee to monitor
its implementation. However, in 1985 the United Nations Economic and
Social Council (ECOSOC) established a Committee on Economic, Social
and Cultural Rights,46 which was intended to replace the then-existing
Working Group47 and which was tasked with submitting a report on its
activities, including a summary of its consideration of the reports submitted
by states party to the Covenant, to the Council, and to make suggestions and
recommendations of a general nature on the basis of its consideration of
those reports and of the reports submitted by the specialised agencies, in
order to assist the Council to fulfil its responsibilities under the Covenant.48
In 2008, the United Nations General Assembly adopted the Optional
Protocol, which provides for the competence of the Committee to ‘receive
and consider communications’.49 Communications may be submitted by or
on behalf of individuals or groups of individuals, under the jurisdiction of
a state party, who claim to be victims of a violation of any of the economic,
social and cultural rights set out in the Covenant by that state party.50

In the system of both of the Covenants, individuals are granted certain rights,
while states are obliged to ensure respect for those rights. Individuals are
also given the opportunity to appear before international bodies when they
believe that their rights have been violated.

Many other conventions conferring rights on individuals have been adopted

within the United Nations system. For example, the 1965 International
Convention on the Elimination of all Forms of Racial Discrimination
provides for the possibility of submitting an individual petition to the Human
Rights Committee, where violations of the Convention by the individual’s
home state are alleged – provided that the home state has recognised the
competence of the Committee to receive communications from individuals.51
46
ECOSOC Resolution 1985/17.
47
ECOSOC Decision 1978/10; 1981/158; ECOSOC Resolution 1982/33.
48
Note 46 above.
49
Article 1 of the Optional Protocol. Text of the Protocol available at:
http://www.ohchr.org/EN/ProfessionalInterest/Pages/OPCESCR.aspx (last accessed 30
March 2015).
50
Id at art 2.
51
International Convention on the Elimination of All Forms of Racial Discrimination,
available at: http://www.ohchr.org/EN/ProfessionalInterest/Pages/CERD.aspx (last
accessed 2 April 2015).

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236 XLIX CILSA 2016

Likewise, the Optional Protocol to the Convention on the Elimination of

Discrimination against Women, provides for the possibility of individual
petition.52 The Convention against Torture also provides for the Committee
against Torture to receive communications from individuals subject to the
jurisdiction of a state party to the Convention, if that state has recognised the
Committee’s competence.53

Alongside the human rights development within the United Nations

system, there has been a significant development of human rights
protection on the regional level. The first regional instrument to confer
rights on individuals, was the European Convention on Human Rights
and Fundamental Freedoms (ECHR).54 Not only does the Convention
oblige state parties to ‘secure to everyone within their jurisdiction the
rights and freedoms’ provided in the Convention,55 it also provides an
effective mechanism for the protection of those individual rights. Under
article 34 of the ECHR, the European Court of Human Rights (ECtHR),
established by the Convention, ‘may receive applications from any
person, non-governmental organization or group of individuals claiming
to be a victim of a violation by one of the High Contracting Parties of the
rights set forth in the Convention or the Protocols thereto’. 56 The ECtHR
may only deal with the matter if all the admissibility conditions have
been complied with, including the exhaustion of all domestic remedies
and the time frame of six months from the date on which the final
decision was taken.57

52
Optional Protocol to the Convention on the Elimination of Discrimination against
Women, available at: http://www.un.org/womenwatch/daw/cedaw/protocol/ (last
accessed 2 April 2015).
53
Convention against Torture and Other Cruel, Inhuman or Degrading Treatment or
Punishment, GA Res 39/46 (1984), art 22.
54
European Convention on Human Rights and Fundamental Freedoms, available at:
http://www.echr.coe.int/Documents/Convention_ENG.pdf (last accessed 4 April 2015).
55
Id at art 1.
56
Initially, the European system of human rights protection provided for two bodies: the
Commission and the Court. Only states and the Commission could submit cases to the
Court, while the Commission’s jurisdiction for individual petitions was optional.
Protocol 9 to the Convention provided the possibility for individuals to bring cases
before the court. This Protocol has been replaced by the Protocol 11, which established
a new organ – the European Court of Human Rights, replacing the two previously
existing ones. The ECtHR may receive applications by individuals. For the text of the
Protocols see:
http://conventions.coe.int/Treaty/en/Treaties/Html/140.htm;
http://conventions.coe.int/Treaty/en/Treaties/Html/155.htm (last accessed 5 April
2015).
57
Article 35 of the Convention n 54 above.

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 International legal personality of individuals 237

Similar procedures to those provided within the European system of

human rights protection, have been provided in a further two regional
systems – the Inter-American and the African regional systems. The
American Convention on Human Rights (ACHR) 58 established two
bodies: the Inter-American Commission of Human Rights and the
International Court of Human Rights. In terms of article 44 of the ACHR,
any person or group of persons, or any non-governmental entity legally
recognised in one or more member state of the Organisation, may lodge
petitions with the Commission containing denunciations or complaints
of violation of this Convention by a state party. The petition is
admissible if local remedies have been exhausted, and if it is submitted
within a period of six months.59 The Commission requests the
information from the government of the state indicated as being
responsible, it can hold hearings or conduct investigations.60 The parties
may reach a friendly settlement, but if they do not, the Commission may
compile a report setting out the facts and stating its conclusions, and
transmit it to the states concerned.61 The case may also be referred to the
Inter-American Court of Justice, but only by state parties or by the
Commission and not by the individuals.62

The African Charter on Human and Peoples’ Rights,63 adopted by the

Organisation of African Unity (now the African Union), established the
African Commission on Human and Peoples’ Rights. Apart from
providing a possibility for a member state to submit a written
communication to the Commission where it has good reason to believe
that another state party has violated the provisions of the Charter,64 the
Charter also provided an individual complaint mechanism by referring
to the ‘communications other than those of state parties to the present
Charter’.65 In 2004, another supervisory body for the African Charter was
established by the Protocol to the Charter – the African Court of Human

58
American Convention on Human Rights, available at:
http://www.oas.org/dil/treaties_B-32_American_Convention_on_Human_Rights.htm
(last accessed 10 April 2015).
59
Id at art 46.
60
Id at art 48.
61
Id at art 49.
62
Id at art 61.
63
African Charter on Human and Peoples’ Rights, available at:
http://www.achpr.org/instruments/achpr/#ch2.1 (last accessed 12 April 2015).
64
Id at art 47.
65
Id at art 55.

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238 XLIX CILSA 2016

and Peoples’ Rights.66 In terms of article 5 of the Protocol, a case can be

brought before the court by a state party, by the Commission and by
African intergovernmental organisations, while there is optional
jurisdiction for the court with respect to NGOs with observer status
before the Commission and for individuals.

Aside from the treaties providing certain rights for individuals, it is

worth noting decisions of the ICJ which are indicative in this regard. In
the LaGrand judgment, the ICJ affirmed the existence of ‘individual
rights’, derived from article 36 of the Vienna Convention on Consular
Relations.67 The court thus concluded that rights for individuals need not
derive necessarily from the human rights treaties but may also derive
from other treaties. Referring to the findings in the LaGrand decision,
the court again confirmed the existence of ‘individual rights’ in the
Avena judgment.68 Some authors, like Gaja, believed that the ICJ, by
confirming the existence of individual rights, acknowledged that
individuals are subjects of international law. Moreover, he opined that
such an approach may lead the ICJ to assert the legal personality even of
the NGOs, because ‘it would be difficult to understand why individuals
may acquire rights and obligations under international law, while the
same could not occur with any international organization, provided that
it is an entity which is different from its members’.69 It remains disputed
whether the ICJ’s affirmation of individual rights, in addition to state
rights, outside of the human rights context in the LaGrand and Avena
judgments implies international personality of the individual or, by
analogy, even of other non-state entities.70

The second half of the twentieth century has been characterised by the
adoption of treaties in which individuals have been given various rights,
whereas states have been obliged to safeguard the protection of those
66
Protocol to the African Charter on Human and Peoples’ Rights on the Establishment of
the African Court on Human and Peoples’ Rights, available at:
http://www.achpr.org/files/instruments/court-
establishment/achpr_instr_proto_court_eng.pdf (last accessed 12 April 2015).
67
LaGrand (Germany v United States of America), Judgment, ICJ Reports 2001, par. 77.
68
Avena and Other Mexican Nationals (Mexico v United States of America), Judgment,
ICJ Reports 2004, par. 40.
69
Responsibility of International Organizations, Document A/CN.4/532, First Report on
Responsibility of International Organizations, by Mr. Giorgio Gaja, Special Rapporteur,
26 March 2003, available at:
http://legal.un.org/ilc/documentation/english/a_cn4_532.pdf (last accessed 20 April
2015).
70
Portmann Legal personality in international law (2010) 11.

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 International legal personality of individuals 239

rights. The most efficient guarantees for human rights protection exist
within regional human rights systems, especially that of Europe. The
ECHR not only grants rights to individuals, but provides the possibility
for individuals to refer directly to the ECtHR in cases of alleged
violation of those rights. Other regional systems provide similar kinds of
protection. Individuals vested with such rights do not need a state as
mediator in seeking redress for violation of their rights, as is the case
with diplomatic protection.

When speaking of human rights and their protection, it is necessary to

distinguish two separate questions. First, what human rights are granted
to individuals by international treaties; and second, is there a mechanism
for the enforcement of those rights. With regard to both issues, it must
be borne in mind that international human rights instruments can be
directly applicable to individuals only if the constitutional legislation of
the state concerned recognises the primacy of international treaties over
domestic law. If not, human rights provisions can be applicable to
individuals only if transformed into domestic law by the legislation of
the state.71 This means that individual rights provided in treaties exist
exclusively due to the states’ will and that same will can terminate
treaties and consequently lead to the extinction of those treaty rights.
Yet, we must not forget that most of the human rights have by now
become a part of customary international law. Individuals will thus enjoy
those rights regardless of their state’s participation in the treaty, but the
legal basis for this will not be treaty law but customary international law.
The same, however, does not apply to the issue of mechanisms of the
enforcement of those rights. Absent a treaty provision providing for the
possibility of an individual appearing before an international body and
claiming the violation of his or her rights, an individual enjoys no such
right under general international law.

INDIVIDUAL CRIMINAL RESPONSIBILITY AND THE

LEGAL PERSONALITY OF INDIVIDUALS
Even centuries ago, when there was no doubt that states were the only
subjects of international law, it was evident that individuals were capable
of violating international law norms and could be punished for this. For
instance, in case of piracy, offenders were considered guilty of a crime
against international society and could thus be punished by international

71
See Orakhelashvili n 7 above at 256.

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240 XLIX CILSA 2016

tribunals or by any state at all.72 Today, individuals can be responsible

for number of violations of international law rights and can consequently
be punished for that. In contrast to states, which cannot be criminally
responsible, individuals who violate international law norms can.

Whether the specific act of an individual will be considered an act of a

state or a ground for his or her individual responsibility, depends on
whether such an act can be attributed to the state under the rules on
attribution. The Draft Articles on Responsibility of States for
Internationally Wrongful Acts provide that the conduct of any state
organ shall be considered an act of that state under international law.73
Furthermore, the conduct of a person or entity which is not an organ of
the state but which is empowered by the law of that state to exercise
elements of government authority, will also be considered an act of the
state.74 These rules apply even if the person or entity in question exceeds
its authority or contravenes instructions.75 The conduct of a person or
group of persons is considered the act of a state under international law
if the person or group of persons is in fact acting on the instructions of,
or under the direction or control of that state in carrying out the
conduct.76 However, if a person commits an unlawful act acting in his or
her private capacity, he or she will be individually responsible.

Is then, this individual responsibility completely separable from the

state’s responsibility? The answer is no. The state is expected to prevent
the commission of unlawful acts and punish those responsible for them.
The responsibility of a state can thus be incurred not for the commission
of the act itself, but for the failure on the part of that state to either
prevent or punish the commission of the act. Take, for example, the
Genocide Convention. In its article 1, the Convention obliges states to
prevent and punish the commission of the crime of genocide.77 In
addition, states are obliged to provide effective penalties for persons
72
See Shaw n 15 above at 184. See also: Andrassy et al n 14 above at 73.
73
Article 4. Draft Articles on Responsibility of States for Internationally Wrongful Acts,
available at:
http://legal.un.org/ilc/texts/instruments/english/draft%20articles/9_6_2001.pdf (last
accessed 22 April 2015).
74
Id at art 5.
75
Id at art 7.
76
Id at art 8.
77
Convention on the Prevention and Punishment of the Crime of Genocide, available at:
https://treaties.un.org/doc/Publication/UNTS/Volume%2078/volume-78-I-1021-
English.pdf (last accessed 24 April 2015).

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 International legal personality of individuals 241

guilty of genocide.78 These persons can be constitutionally responsible

rulers, public officials, or private individuals.79 If the state fails to fulfil
its duty to punish the responsible individuals, the international criminal
responsibility of that individual arises. This is usually the case if the
state itself is a part of the endeavor in which an individual committed the
act in question.

Following World War I, it was agreed in the Treaty of Versailles that the
German government recognised the right of the Allied and Associated
Powers to bring persons accused of having committed acts in violation
of the laws and customs of war before military tribunals.80 Furthermore,
the Nuremberg and Tokyo Tribunals were established in order to
prosecute individuals for war crimes and other atrocities committed
during World War II. Since these individuals were high-ranking political
and military leaders of Germany and Japan respectively, it was not
expected that these states would prosecute them themselves. Upon the
adoption of the principles implied at the Nuremberg trials first in the
General Assembly,81 and then by the International Law Commission
(ILC), the issue of individual responsibility in international law arose
within the ILC. The discussion resulted in no general conclusion, as
different members had different views on the topic. Some of them
asserted that individual responsibility undoubtedly derives from the
Nuremberg Charter and the trial, but that it constitutes ‘a new concept,
for up to then the individual had not been considered as capable of being
guilty of an international crime’.82 Others argued that the Charter and the
judgment had not created, but rather confirmed, principles already
existing in positive international law or still in the process of
development. Thus, individual responsibility was merely the application
of a more general principle – that of the individual being the subject of
international law.83 During the 45th meeting of the ILC, it was suggested
that the following sentence be added to the general principle of
individual responsibility (Principle I): ‘Thus the individual is subject to

78
Id at art 5.
79
Note 77 above.
80
Article 228 of the Treaty of Versailles, available at:
http://avalon.law.yale.edu/imt/partvii.asp (last accessed 27 April 2015).
81
GA Res 95(I).
82
26th Meeting, 24 May 1949, Yearbook of the International Law Commission, 1949, par
11.
83
Id at par 13.

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242 XLIX CILSA 2016

international law, at least in criminal law.’84 On a vote being taken, the

addition of this sentence was rejected.85 Following the submission of the
text adopted by the Commission, the General Assembly did not formally
adopt the Nuremberg principles in their elaborated form.86 It invited
member states to make observations,87 which very few states did, and did
not elaborate any further on the Nuremberg principles.

As much as the Nuremberg judgment was at times challenged as

representing ‘victor’ justice, the subsequent establishment of the
criminal courts was based on different motives – punishing breaches of
human rights and humanitarian law.88 In the 1990s, two ad hoc criminal
tribunals were established – the International Criminal Tribunal for the
Former Yugoslavia (ICTY) and the International Criminal Tribunal for
Rwanda (ICTR). Both were created by Security Council’s resolutions89
as a part of the Council’s endeavours to restore international peace and
security – a task entrusted to it by the Charter.90 It was believed that the
establishment of these Tribunals would discourage the further
commission of crimes and would secure the punishment of the individual
crimes which were unlikely to be punished by the states of nationality of
the accused.91

The Statute of the ICTY provides in article 1 that ‘the … Tribunal shall
have the power to prosecute persons responsible for serious violations
of international humanitarian law committed in the territory of the
former Yugoslavia since 1991 in accordance with the provisions of the
… Statute’.92 The jurisdiction of the Tribunal includes grave breaches of
the 1949 Geneva Conventions, violations of the laws and customs of war,
84
45th Meeting, 13 June 1950, Yearbook of the International Law Commission, 1950, par
50.
85
Id at par 103.
86
Cassese Affirmation of principles of international law recognized by the Charter of the
Nuremberg tribunal, available at: http://legal.un.org/avl/pdf/ha/ga_95-I/ga_95-I_e.pdf
(last accessed 2 May 2015).
87
GA Res 488(V).
88
See Kaczorowska-Ireland n 22 above at 196 197.
89
SC Res 827 (1993); SC Res 955 (1994).
90
Article 24 of the UN Charter n 34 above.
91
It was controversial whether the establishment of the Tribunals could be interpreted as
fulfilling the mandate of restoring the international peace and security. Some opined that
the Council exceeded its powers under the Charter by establishing them. See: Cassese &
Gaeta Cassese’s international criminal law (3ed 2013) 260.
92
Statute of the International Criminal Tribunal for the former Yugoslavia, available at:
http://www.icty.org/x/file/Legal%20Library/Statute/statute_sept09_en.pdf (last
accessed 5 May 2015).

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 International legal personality of individuals 243

genocide, and crimes against humanity.93 Any person who planned,

instigated, ordered, committed or otherwise aided and abetted in the
planning, preparation or execution of any of these crimes, shall be
individually responsible for the crime.94 The jurisdiction of the ICTR, on
the other hand, refers to crimes committed within a non-international
armed conflict and includes genocide, crimes against humanity, and
violations of common article 3 of the Geneva Conventions and
Additional Protocol II.95

In addition to the ad hoc Tribunals, there is the permanent International

Criminal Court, established by the Rome Statute of 1998 (entered into
force in 2002). In terms of the Statute, the court has jurisdiction over
natural persons96 for the crimes of genocide, aggression, crimes against
humanity, and war crimes.97 Apart from these international tribunals,
there are several hybrid courts that apply international law.98 The crimes
specified in the Statutes of all of these judicial bodies are punishable
regardless of their criminalisation under the domestic law of the
respective states. This means that in these situations, the criminal
responsibility of individuals is based exclusively on international law.
The question, however, arose as to whether that responsibility derives
from customary international law, as suggested by the ICTY in the Tadiæ
case,99 or from the Statutes of the Tribunals, as the ICTR opined in the
Kanyabashi case.100 It seems correct to embrace the view of the ICTY,
for it would be untenable that individuals would only be obliged not to
commit international crimes in circumstances in which there is a statute
establishing an international/hybrid tribunal’s jurisdiction to prose-
cute.101 Besides, even before the adoption of the abovementioned

93
Id at arts 2–5.
94
Id at art 7.
95
Id at arts 2–4 available at: http://www.unictr.org/sites/unictr.org/files/legal-
library/941108_res955_en.pdf (last accessed 6 M ay 2015).
96
Article 25 of the Statute. Text of the Statute available at: http://www.icc-
cpi.int/NR/rdonlyres/ADD16852-AEE9-4757-ABE7-
9CDC7CF02886/283503/RomeStatutEng1.pdf (last accessed 6 May 2016).
97
Id at art 5.
98
On the Special Court for Sierra Leone, the Serious Crimes Panels of the District Court
in Dili (East Timor) and the Extraordinary Chambers of Cambodia see: Smith Text and
materials on international human rights (2ed 2010) 218-223.
99
Prosecutor v Tadic case no IT-94-1-AR72, Appeals Chamber, Judgment on Jurisdiction,
2 October 1995, par. 134 (see also pars 128–37)
100
Prosecutor v.Kanyabashi case no ICTR-96-15-T, Decision on the Defence Motion on
Jurisdiction, 18 June 1997, par 33 35.
101
See Parlett n 2 above at 277.

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244 XLIX CILSA 2016

statutes, the Security Council had stated that ‘persons who commit or
order the commission of grave breaches of the Conventions are
individually responsible in respect of such breaches’.102

Unlike under human rights law, in which individuals can refer to the
international bodies only if their states of nationality have agreed to such
jurisdiction, individuals may be prosecuted under international law
regardless of their home states’ consent. Such direct application of
international law to individuals makes individual criminal responsibility
an area in which individuals come closest to being recognised as subjects
of international law.

INDIVIDUALS AS OBJECTS OF SECURITY COUNCIL

SANCTIONS
During the 20th century. it became clear that individuals and groups of
people may influence international peace and security to the same extent
as states. This is particularly true of terrorist organisations and their
members, who have become a global threat and who are not necessarily
connected to any particular state. After 9/11, the international
community was faced with the problem of not knowing exactly how to
respond to such heinous acts, since international law regulates only inter-
state relations in this area, while the status of non-state actors in
international law remains ambiguous.

In an attempt to deal with the threat of terrorist activity, the United

Nations Security Council began imposing sanctions on groups and
individuals who were considered a danger to international peace and
security.103 The Security Council is empowered by the United Nations
Charter to undertake actions necessary for the maintenance of
international peace and security,104 including imposing sanctions on
responsible actors.105 However, as much as the Security Council
resolutions have always to some extent affected individuals or certain
groups, it could hardly be imagined at the time of the adoption of the
Charter, that hundreds of individuals would be ‘blacklisted’ by the

102
SC Res 780 (1992).
103
SC Res 1137 (1997); SC Res 1267 (1999); SC Res 1333 (2000); SC Res 1390 (2002);
SC Res 1455 (2003); SC Res 1483 (2003); SC Res 1526 (2004); SC Res 1617 (2005);
SC Res 1735 (2006); SC Res 1822 (2008); SC Res 1904 (2009); SC Res 1989 (2011);
SC Res 2083 (2012); SC Res 2161 (2014).
104
Article 24 of the Charter.
105
Articles 41 and 42 of the Charter.

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 International legal personality of individuals 245

Security Council as suspected terrorists 1 0 6 and would be subject to

sanctions.107 This has led to numerous human rights concerns. First of
all, individuals under sanction are deprived of the procedural rights
which are necessary in any judicial proceedings. If the Security Council
imposes financial sanctions or travel bans on individuals, those
individuals have no possibility of referring to the Security Council and
ask for a review of the Council decision. The imposed sanctions may
lead to the violation of various other human rights, such as the rights to
health, to freedom of movement, to a private and family life, and others.
In addition to general human rights concerns, another problem arose.
Since the Security Council decisions bind states, not individuals, the
sanctions imposed affect individuals only indirectly. This is to say that
states need to invoke measures necessary for the application of the
Security Council sanctions. These measures might conflict with states’
other international obligations, primarily those involving respect for
human rights.108

Although states are intermediaries in the process of imposing the

Security Council sanctions on individuals, the fact that individuals are
the intended targets of those sanctions shows that they are capable of
violating the relevant international law norm and consequently be
sanctioned for that. This proves that an individual has delictual capacity,
which is one of the components of legal personality.

CONCLUSION
Individuals are no longer perceived as objects of international law.
Whether they have morphed into subjects of international law remains
a matter of controversy among legal writers. Individuals, no doubt,
possess certain rights at the international level. What is more, they have
mechanisms to enforce those rights even against their own states,
although not under general international law. Apart from having rights
under international law, individuals can be criminally responsible for the
106
At the time of writing, 229 individuals have been ‘blacklisted’ by the so-called
‘1267/1989 Committee’. Data available at:
http://www.un.org/sc/committees/1267/1267.pdf (last accessed 8 May 2015).
107
Birkhäuser Sanctions of the Security Council against individuals – some human rights
problems (2005) http://esil.-sedi.org/english/pdf/Birkhauser.Pdf (last accessed 9 M ay
2015).
108
Nada v Switzerland, ECHR Grand Chamber, Judgment of 12 September 2012; Al-Jedda
v The United Kingdom, ECHR, Grand Chamber, Judgment of 7 July 2011; Case
C–402/05 P and C–415/05, P. Kadi and Al Barakaat International Foundation v
Council and Commission. [2008] ECR I–6351.

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246 XLIX CILSA 2016

violation of international law norms. They can be prosecuted before

international tribunals, regardless of their home states’ consent.

Whether the emergence of individual criminal responsibility and the

development of human rights law will be regarded as evidence of
individuals assuming the role of ‘new’ subjects of international law,
appears to depend on the notion of the international legal person. In this
regard, it is necessary to determine what characteristics are required for
an entity to constitute a subject of international law. If one takes a view
that an international law subject should have characteristics identical to
those of states, in terms of legal, procedural and delictual capacity,
individuals would not stand the test for international legal personality.
For instance, they do not participate directly in the creation and
modification of international law norms, and they enjoy rights arising
from treaties solely because states choose to afford them those rights by
being parties to the treaties.

Yet, the ICJ stated clearly in the Reparations case that the subjects of
law are not necessarily identical in their nature or in the extent of their
rights. The court rightly observed that the development of international
law has been influenced by the requirements of international life, and
that the nature of the international law subject depends on the needs of
the community at the given time.109 Following the court’s reasoning, it
seems appropriate not to apply the same criteria to establish the legal
personality of different actors on the international scene.

The majority view is that individuals have not yet become international
law subjects. This view rests, in the main, on the assumption that
individuals lack some of the characteristics relevant to states. If
individuals are expected to acquire all the rights which states currently
enjoy, they will probably never become international law subjects.
However, one cannot deny that individuals, as holders of rights and
duties in international law, do evidence characteristics of international
law subjects. If the approach taken by the ICJ in the Reparations case is
used – that not all the international law subjects need to be identical –
there is no reason not to consider individuals as subjects of international
law, although with limited capacity in comparison to that of states.

109
ICJ Reports 1949 178.

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