Introduction
International human rights law (IHRL) and international humanitarian law (IHL) both seek to safeguard human dignity.Footnote 1 Yet they diverge in numerous ways, including the fact that IHL, unlike IHRL, has limited monitoring mechanisms whose level of implementation is practically nil.Footnote 2 As a result, in specific cases involving international or non-international armed conflicts,Footnote 3 the European Court of Human Rights (ECtHR) and Inter-American Court of Human Rights (IACtHR) have served as monitoring bodies for IHL.
Reference to IHL in ECtHR and IACtHR case law has not been constant, linear or consistent. With their respective differences, notably in how they exercise their contentious jurisdiction, the two courts’ relationship to IHL has changed over time through two approaches: implicit and explicit. Under the implicit approach, the courts have used the language of IHL,Footnote 4 overtly or not, in the way they present information (such as the parties to an armed conflict, the weapons they use and the facts of the situation).Footnote 5 In such cases, however, these two courts have limited themselves to assessing the facts through the prism of the European and American Conventions on Human Rights respectively. Under the explicit approach, which first appeared in the 2000s,Footnote 6 the two courts specifically cite various sources of IHL (treaty law, custom, general principles, doctrine, case law and soft law) in their analyses of certain cases involving an armed conflict. In some cases, explicit references to IHL are made to provide background,Footnote 7 while in others, the references have been incorporated into the courts’ considerations and arguments.Footnote 8 These implicit and explicit references to IHL do not necessarily correspond to linear phases in the two courts’ respective bodies of case law.Footnote 9 In addition, while there are no established methodologies for determining when these regional courts must apply IHL, its application is a real and unavoidable fact which has shown, over time, that there is no going back.Footnote 10
Building on these observations, this article contends that the ECtHR and IACtHR have also acted as monitoring bodies with respect to the rules of IHL that protect the dead in armed conflict, as well as those who go missing and, in many cases, are presumed or found dead. The two courts have done this by interpreting the human rights and State obligations set out in the European and American Conventions on Human Rights through the prism of IHL, in particular with respect to the right to the truth and to State obligations of prevention, investigation and reparations. The first part of this article will focus on the standards that the ECtHR and IACtHR have developed regarding the obligation to search for and identify the dead and missing in armed conflict. The second part looks at the standards that apply to the obligations to bury the remains of the dead (including missing people who are found dead) and to investigate unlawful deaths and cases of forcible disappearance. The two courts have interpreted these obligations while carefully analyzing the merits of the cases and determining reparations.
Obligations to search for and identify the dead and missing
In IHL, the obligations of States to search for and identify the dead and missing in armed conflict are rooted in respect for family lifeFootnote 11 and in families’ right to know the fate of their loved ones.Footnote 12
In cases involving an armed conflict where the two courts refer explicitly to IHL, they have developed the content and scope of the obligation to search for and identify the dead and missing in the context of both the right to truth – in its individual and collective dimensionsFootnote 13 – and the obligation to investigate, prosecute and punish those responsible for human rights violations. However, the content and scope of the obligation to search for and identify the dead and missing are autonomous: that obligation will remain a duty of States even if the perpetrators are punished as a result of an investigation or if no investigation takes place. The next two sections will show how, in armed conflict, the obligation to search for and identify the dead differs in several respects from the obligation to search for and identify the missing who may be presumed or found dead.
Searching for and identifying the dead
Under IHL, “[e]ach party to the conflict must, without delay, take all possible measures to search for, collect and evacuate the dead without adverse distinction”.Footnote 14 The reference to the principle of non-discriminationFootnote 15 means that the obligation to search for, collect and identify the dead applies to all dead people, “regardless to which party they belong, but also regardless of whether or not they have taken a direct part in hostilities”.Footnote 16 States that are party to an armed conflict must all “take all possible measures to prevent the dead from being despoiled,” as the “[m]utilation of dead bodies is prohibited”.Footnote 17
With regard to non-international armed conflicts (NIACs), the IACtHR, drawing on Article 3 common to the four Geneva Conventions, Additional Protocol II (AP II) and customary IHL,Footnote 18 has maintained that, even in these exceptional circumstances, IHL “includes obligations of due diligence concerning the correct and adequate removal of corpses and the efforts that should be made to identify and to bury them in order to facilitate their subsequent identification”.Footnote 19 In this regard, the San José court warned that “the management of the crime scene and the handling of bodies must include, as a minimum, the procedures essential for preserving evidence that may contribute to the success of the investigation”.Footnote 20 This means that the crime scene and corpse removal must be managed, and initial autopsies carried out,Footnote 21 so that the remains can be identified, returned and buried, and, if applicable, so that investigation-related duties can be fulfilled.
In the European system, with respect to the procedural obligation to investigate that derives from the right to life,Footnote 22 the ECtHR has pointed out the obligation of States to “account for” people who, in an international armed conflict (IAC), die in combat or succumb to their wounds. One of the implications of this obligation is that “the authorities [must] collect and provide information about the identity and fate of those concerned”.Footnote 23 This obligation also gives the authorities grounds to permit organizations like the International Committee of the Red Cross (ICRC) to collect and share information on the identity and fate of those concerned.Footnote 24
Regarding the search for people who have died in a NIAC, the Strasbourg court has noted that “under normal circumstances the establishment of the precise number and status of the victims of the use of lethal force is an essential element of any proper investigation of incidents involving a high number of casualties”.Footnote 25 Yet the Court has also acknowledged that it is not always possible to obtain a “more accurate assessment”Footnote 26 in view of the circumstances that can arise in armed conflict situations. These circumstances can include, for example, the use of lethal force in an active combat zone at night-time or the removal of the victims’ bodies by civilians after the strike, as happened in the Hanan case, which involved the armed conflict in Afghanistan.Footnote 27 In this respect, it is worth noting that the ECtHR cited cultural and religious factors in connection with the obligation to recover bodies, emphasizing that “the use of modern forensic techniques was difficult in view of the social and religious mores of the local population”.Footnote 28 According to the Court, such circumstance can delay the investigation process.Footnote 29
In addition, although the rules of IHL applicable to IACs authorize the parties to call on civilians and aid societies to participate in the tasks of searching for and evacuating the dead,Footnote 30 the ECtHR has identified a clear limit when it comes to people deprived of their liberty. In the case Georgia v. Russia (II), as part of its analysis of the prohibition on torture (Article 3 of the European Convention), the Court stated that the practice of guardsFootnote 31 ordering detainees (close to 160 of them, around one third women, many of them older)Footnote 32 to carry out “vexatious and humiliating measures”,Footnote 33 such as cleaning the streets and collecting corpses, was not consistent with State obligations.Footnote 34 According to the Court, these measures contravene the European Convention as well as IHL, in particular Geneva Convention IV (GC IV) and Additional Protocol I (AP I),Footnote 35 which “provide in a general way that detainees are to be treated humanely and detained in decent conditions”.Footnote 36
In view of these standards, let us now turn to State obligations to search for and identify people who have gone missing during an armed conflict and who, in many cases, can be presumed or will be found dead.
Searching for and identifying the missing
Under IHL, “[e]ach party to the conflict must take all feasible measures to account for persons reported missing … and must provide their family members with any information it has on their fate”.Footnote 37 The prohibition on forcible disappearances (i.e., involving agents of the State)Footnote 38 is also part of customary IHL.Footnote 39 The ECtHR and IACtHR have already studied the question of forcible disappearances during armed conflicts, which are also serious violations of IHRL, in order to determine the State’s potential responsibility. The two courts concur in their judgments that denying the truth about the fate of victims of forced disappearance results in a form of cruel and inhuman treatment for the closest family members.Footnote 40
The IACtHR, citing the Guiding Principles for the Search for Disappeared Persons adopted by the United Nations (UN) Committee on Enforced Disappearances,Footnote 41 has pointed out that the obligation to search for and locate the disappeared is a key component of the right to the truthFootnote 42 and must be complied with in an effective, comprehensive, appropriate and diligent manner.Footnote 43 In situations of forced disappearance and in keeping with the right to freedom of expression,Footnote 44 the Court has noted that both the right to access to information on the fate of the disappeared person and the State’s positive obligation resulting therefrom to provide it require “the active participation of all authorities involved”.Footnote 45 According to the San José court,
it is not enough for the information to be provided or for the non-existence of the information to be alleged, rather, it is necessary to carry out exhaustive efforts to determine where the victim is located and inform the victim’s family and society as a whole.Footnote 46
According to the Court, this obligation is independent of whether the disappearance was forcible (i.e., a strictly wrongful act) or was the result of other circumstances such as death occurring during an operation, a mistake in the process of returning the remains,Footnote 47 or “other reasons whether or not related to the armed conflict”.Footnote 48
Even if the person responsible for the forcible disappearance is found guilty as a result of criminal proceedings, the State’s duty to investigate thus remains intact as long as there is uncertainty about the fate of the missing person.Footnote 49 In addition, “on the assumption that internal difficulties might prevent the identification of the individuals responsible”Footnote 50 for a forcible disappearance, “the victim’s family still have the right to know what happened to him and … where his remains are located”.Footnote 51 Therefore, in cases of forcible disappearance for which a judicial investigation has begun, the obligation to determine the victim’s whereabouts and fate persists, whether or not those responsible for the crime have been identified and punished.
In addition, the IACtHR mentions the possibility that a State can carry out “humanitarian” searches – that is, searches to determine the whereabouts or fate of a missing person that are conducted without a process already ongoing related to either the investigation, the prosecution of those responsible for the disappearance, or their eventual punishment. Thus, the Court has emphasized that States must use all appropriate and effective means at their disposal – judicial, administrative and others – to search for disappeared people.Footnote 52 In an effort to show that the humanitarian imperative is not an obstacle to the implementation and progress of judicial proceedings on disappearances, the San José court determined that a humanitarian search for missing people is not incompatible with a subsequent judicial investigation into the crime, asserting that “[t]he remains are evidence of that which occurred [and, together with] the place where the remains are found[,] may also provide valuable information as to the perpetrators or to which institution they belonged”.Footnote 53 In other words, a humanitarian search for disappeared people can certainly be the starting point for a judicial investigation.
Moreover, based on the General Comment on Women Affected by Enforced Disappearances adopted by the UN Working Group on Enforced or Involuntary Disappearances,Footnote 54 the IACtHR determined, in the Movilla Galarcio case, that States have an obligation to adopt measures to recognize and guarantee the efforts by women to search for their loved ones (mujeres buscadoras)Footnote 55 during an armed conflict, as part of the State duty to prevent and investigate forcible disappearances. Similarly, the Court determined that States must guarantee that the women’s efforts are “carried out without obstacles, intimidation or threats, ensuring [their] personal integrity and … their rights to political participation acknowledged in the [American Convention on Human Rights]”.Footnote 56 Along these same lines, and adopting a differentiated approach in its analysis, the Court noted that women are affected in unique ways (economically, socially and psychologically)Footnote 57 in situations where their loved ones have been forcibly disappeared in an armed conflict.
For the specific case of a disappearance occurring during an IAC, in terms of prevention, the San José court noted that “any detention, regardless of its cause or duration, must be duly registered”;Footnote 58 that States have an obligation to set up an “official information bureau responsible for receiving and providing information on protected people who are within its power”Footnote 59 in order to avoid forcible disappearances;Footnote 60 and that States must facilitate the ICRC’s access to anyone deprived of their liberty.Footnote 61 For the IACtHR, “the failure to register a detention, despite clear obligations in this regard, show the intention to hide it”.Footnote 62
The ECtHR, in cases with explicit reference to IHL, has considered that, based on the right to life and the procedural obligation to investigate, States have a “continuing obligation … to account for the whereabouts and fate of the missing”.Footnote 63 If necessary, “measures for redress could then be effectively adopted”.Footnote 64 Yet the Court added that the “discovery of the body or the presumption of death … merely casts light on one aspect of the fate of the missing person”,Footnote 65 and that “[a]n obligation to account for the disappearance and death, and to identify and prosecute any perpetrator of unlawful acts in that connection, will generally remain”.Footnote 66 Even if “a lapse of [time] without any news of the missing persons may provide strong circumstantial evidence that they have died meanwhile, this does not remove the procedural obligation to investigate”.Footnote 67
Compliance with the obligation to search for and identify the dead or missing “is a conditio sine qua non of respect for the [other] rules”Footnote 68 of IHL. The second part of this article will look at whether the judgments of the ECtHR and IACtHR protect the dead and missing with respect to these other rules – including the obligations to bury remains and investigate war crimes – that are incumbent upon States involved in an armed conflict.
Obligations to bury the dead and investigate war crimes
When States comply with the obligation to search for and identify the dead and missing in armed conflict, they are more likely to comply with other obligations under IHL, including those of disposing of the dead in a respectful manner and investigating war crimes. These State obligations are also linked to respect for family lifeFootnote 69 and the right of families to know the fate of their missing relatives.Footnote 70
In cases involving an armed conflict in which the ECtHR and IACtHR refer explicitly to IHL, the two courts have determined the content and scope of the obligation to bury the remains of the dead and of missing people found dead as well as the obligation to investigate, prosecute and punish those responsible for serious violations of IHL, including extrajudicial executions, massacres and forcible disappearances. Those two obligations are the focus of the next two sections.
Burying the dead
Under IHL, “[t]he dead must be disposed of in a respectful manner”Footnote 71 and “their graves respected and properly maintained”.Footnote 72 Furthermore, if the dead have not been identified, “each party to the conflict must record all available information prior to disposal and mark the location of the graves”.Footnote 73 Compliance with this obligation is necessary so that people who go missing in armed conflict can be identified.
In this regard, although the American Convention on Human Rights “does not explicitly establish the right to ‘bury the dead’”,Footnote 74 the IACtHR “has addressed this issue not as a substantive right, but in the context of the reparations in cases of forced disappearances; mainly, as a result of the violation of another right that is established in the Convention”.Footnote 75 The Court has emphasized that “the impossibility of burying the dead [is] a fact that increases the suffering and anguish of the next of kin, which can be considered in the reparations when determining an amount for the non-pecuniary compensation in their favor”.Footnote 76
Thus, the San José court has noted that “care for the mortal remains of a person is a form of observance of the right to human dignity”Footnote 77 and that “the mortal remains of a person deserve respectful treatment before that person’s next of kin, due to the significance they have for them”.Footnote 78 In keeping with the ECtHR’s attention to religious and cultural factors, the IACtHR has pointed out the need for an “ethnic” approach when the State’s obligation comes into play in cases involving indigenous and tribal peoples.Footnote 79 Indeed, in the Bámaca Velásquez case, the IACtHR noted the obligation to respect the remains of a member of a non-State armed group who was part of the Maya people (Mam ethnic group) and who was a victim of forcible disappearance in the armed conflict in Guatemala. The Court pointed out that “funeral ceremonies ensure the possibility of the generations of the living, the deceased person, and the deceased ancestors meeting anew”.Footnote 80 Thanks to this ethnic approach, according to the Court, “the cycle between life and death closes with these funeral ceremonies”,Footnote 81 as the group is given a chance to pay homage to the victim, keep him near and return or take him to live with his ancestors, and “new generations [can] share and learn about his life, something that is traditional in his indigenous culture”.Footnote 82
In addition, in a case related to the IAC between Ecuador and Peru, the San José court underscored the obligation of States to respect the remains of the dead and to “facilitate access to graves for family members … and representatives of official grave registration offices, and to set out practical arrangements regarding this access”.Footnote 83 As former judge A. A. Cançado Trindade noted in one of his initial separate opinions, this obligation complies fully with IHL, which “imposes expressly the respect for the mortal remains of the dead persons, as well as a burial place with dignity for them”.Footnote 84 Moreover, with regard to full reparations, the IACtHR has determined that, in armed conflict, the State is responsible for taking all necessary steps to return to the next of kin the remains of victims of wrongful deathFootnote 85 or of forcible disappearance (if the remains are found).Footnote 86 In both situations, the Court has ordered the State to cover the burial costs.Footnote 87
Furthermore, in some cases of extrajudicial executions and massacres where victims were buried in mass graves, the IACtHR has ordered the State to immediately undertake the necessary steps to exhumeFootnote 88 and individually identify the executed victims within a reasonable time frameFootnote 89 and to return their remains to their next of kin.Footnote 90 In one of these cases, the Court pointed out that burial in mass graves “without respecting the basic standards that would facilitate the subsequent identification of the bodies”Footnote 91 and “the failure to return the bodies to the next of kin may constitute demeaning treatment, to the detriment of the person who died, as well as to the members of his or her family”.Footnote 92
In the European system, the ECtHR has deemed that the obligation of States to “account for” people who, in an IAC, died in fighting or succumbed to their wounds implies the need to “proper[ly] dispos[e] of remains and … collect and provide information about the identity and fate of those concerned”.Footnote 93
Let us now consider the question of whether the State obligation to investigate war crimes, prosecute suspects and punish those found guilty of wrongful death and forcible disappearance protects the dead and missing in armed conflict.
Investigating wrongful deaths and forcible disappearances
Under IHL, States are required to investigate potential war crimes that fall within their jurisdiction and to prosecute any suspects.Footnote 94 Wrongful deaths and forcible disappearances are both examples of war crimes.
As both the ECtHR and the IACtHR have made clear in cases related to armed conflicts, States have an obligation to investigate potential war crimes where wrongful deaths and forcible disappearances have occurred.Footnote 95 The two courtsFootnote 96 have also deemed, with their respective nuances, that war crimes, as defined by the Rome Statute of the International Criminal Court,Footnote 97 are an exception to the rule set out in AP II that calls on the authorities, at the end of hostilities, “to grant the broadest possible amnesty to persons who have participated in the armed conflict, or those deprived of their liberty for reasons related to the armed conflict”.Footnote 98 Under both IHRL and IHL, States must combat impunity for war crimes and protect the right of victims’ families to know the truth.Footnote 99
The IACtHR has applied the status of jus cogens Footnote 100 to the obligation to investigate potential grave human rights violations (extrajudicial executions or massacres, forcible disappearances, torture, and slavery and servitude and their modern-day forms) that also constitute serious breaches of IHL. With respect to forcible disappearances, the Court has noted that the terms of the Inter-American Convention on Forced Disappearance of Persons strengthen the duty to investigate.Footnote 101 Furthermore, the Court has pointed out that the investigation requires a “differentiated analysis of the impact that those violations had on the different groups in a situation of vulnerability …, such as the children and women”,Footnote 102 so that specific violations against these groups are not made invisible.Footnote 103
For cases associated with an IAC, the San José court has asserted that States’ obligation to investigate breaches of rules of IHL designed to protect civilians is strengthened by GC IV, which assigns to States the “obligation to search for persons alleged to have committed, or to have ordered to be committed, … grave breaches [of the Convention]”,Footnote 104 including forcible disappearances and other violations of IHL, both treaty and customary.Footnote 105
In its analysis of the obligation to investigate, the ECtHR referred not just to the Geneva Conventions but also to the Guidelines on Investigating Violations of International Humanitarian Law, a document prepared by the ICRC and the Geneva Academy of International Humanitarian Law and Human Rights.Footnote 106 Under Geneva Conventions III and IV, the Strasbourg court reiterated that in occupation situationsFootnote 107 “an official enquiry must be held by the Detaining Power following the suspected homicide of a prisoner of war”,Footnote 108 and that “[e]very death or serious injury of an internee, caused or suspected to have been caused by a sentry, another internee or any other person, as well as any death the cause of which is unknown, shall be immediately followed by an official enquiry by the Detaining Power”.Footnote 109 Regarding forcible disappearances, the Court noted that “the ongoing failure to provide the requisite investigation will be regarded as a continuing violation”.Footnote 110
Moreover, in some cases in which States took part in a multinational force under the auspices of an international organization, the ECtHR has pointed out that
the investigation should also be broad enough to permit the investigating authorities to take into consideration not only the actions of the State agents who directly used lethal force but also all the surrounding circumstances, including such matters as the planning and control of the operations in question, where this is necessary in order to determine whether the State complied with its obligation under Article 2 [of the European Convention on Human Rights] to protect life.Footnote 111
Furthermore, the ECtHR has deemed that people suspected of having committed war crimes should be arrested, tried and punished “by military or civilian tribunals”Footnote 112 – or even by a “Partisan trial”Footnote 113 – in a fair trial.Footnote 114 Prosecuting those suspected of war crimes in a military tribunal runs counter to the IACtHR’s case law, under which ordinary courts alone are competent to investigate and prosecute suspects and punish those found guilty of human rights violations, including serious violations such as wrongful death and forcible disappearances in armed conflict.Footnote 115
With regard to NIACs, in the Hanan case, the ECtHR pointed out that the fact that the deaths which the authorities must investigate took place during active hostilities in an “extraterritorial armed conflict”Footnote 116 is a decisive factor when it comes to the requirements and scope of the investigation into the crime.Footnote 117 Indeed, taking into account the complexity of an investigation involving this phase of a conflict, the Court has stated that “the procedural duty under Article 2 [of the European Convention on Human Rights] must be applied realistically”.Footnote 118 This position differs from the judgments of the IACtHR, which has only stated in general terms that it could take into account “specific circumstances or constraints created by the situation of [armed] conflict per se when analysing whether the State has complied with its obligations”,Footnote 119 including the duty to investigate.
Conclusion
In a number of cases, the ECtHR and IACtHR have acted as monitoring bodies regarding compliance with the rules of IHL designed to protect the dead and missing in international or non-international armed conflicts. The two courts have addressed the right to the truth and the State obligations of prevention, investigation and reparations by developing standards that govern the duties to search for and identify the dead and missing, to bury the dead (including missing people who are found dead) and to investigate wrongful deaths and forcible disappearances in armed conflict.
The two courts have taken into account relevant rules of IHL in interpreting the European and American Conventions on Human Rights, and as a result of this hermeneutic process, the relationship between IHL and IHRL has evolved. It has become a symbiotic relationship: not only has IHL bolstered the interpretation of the European and American Conventions, but the Conventions and their interpretation have also expanded the meaning and scope of the rules of IHL that are meant to protect the dead and missing in armed conflicts.
This symbiotic relationship between IHRL and IHL promotes diligent and preventive behaviour by States in times of peace, compliance with the norms and principles of IHL during hostilities, and a post-armed conflict scenario in which the ideals of transitional justice aimed ultimately at protecting human dignity – an objective shared by both of these branches of international law – can be achieved.