boston university international law journal
TRANSCRIPT
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8/2/2019 Boston University International Law Journal
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Boston University International Law Journal
Spring, 1987
Note
*177DIPLOMATIC IMMUNITY: A PROPOSAL FOR AMENDING THE VIENNA CONVENTION TO
DETER VIOLENT CRIMINAL ACTS
Stephen L. Wright
Copyright 1987 by the Trustees of Boston University; Stephen L. Wright
I. INTRODUCTION
The international law of diplomatic immunity[FN1]grants diplomats[FN2]exemption from the civil and
criminal jurisdiction of the state to which the diplomat is sent.[FN3]This customary international law
doctrine[FN4]is codified in the Vienna Convention on Diplomatic Relations[FN5]in article 31.[FN6]As
the population of, *178and violent acts committed by, diplomats is increasing, diplomatic immunity is
eroding deterrence against such crimes.[FN7]The result is heightened international tension which
impairs communication between states.
In 1984, a sequence of events at the Libyan embassy in London[FN8]ended in British police assisting a
suspected murderer, an embassy occupant, to leave the United Kingdom. Diplomatic immunity under
theVienna Convention prevented police from making arrests and initiating criminal prosecution against
the embassy occupants. These events illuminate the major flaw of diplomatic immunity as codified in
the Vienna Convention: the absence of deterrence against criminal acts.
Accordingly, this Note proposes an amendment to the Vienna Convention providing for deterrence
against diplomats' acts of violence. This proposal attempts to not only fulfill diplomatic immunity's
traditional function of preventing harrassment of diplomats,[FN9]but also to better enhance
international communication. To make it as broadly acceptable as possible, the proposal is structured
consistently with the theoretical bases for diplomatic *179 immunity and supported by the legislative
history of the Vienna Convention.[FN10]
Section I of the Note recounts the events at the Libyan embassy in London in 1984. Section II sets forth a
proposal for amending the Vienna Convention to reduce diplomats' criminal conduct, and further
examines the impact the proposal might have had on the Libyan embassy incident. Section IIIdescribes the scope of diplomatic immunity as it currently exists under the Vienna Convention. In
section IV, the Note scrutinizes the widely held view of the nature of the diplomatic process in an effort
to define the limitations on restricting diplomatic immunity. Section V investigates the history behind
the theoretical bases for diplomatic immunity and concludes that the long-run trend is toward a
narrower scope of immunity such as that advocated by the proposal in section I. Section VI applies the
theory of diplomatic immunity to analyze both the proposal for amending the Vienna Convention and
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the Vienna Convention itself, which is found to deviate significantly from its theoretical foundations by
creating an overly broad scope of immunity. Finally, section VII examines the Vienna Convention's
legislative history and other historical facts which support a further restriction of the Vienna
Convention's diplomatic immunity provisions.
II. THE 1984 INCIDENT AT THE LONDON LIBYAN "PEOPLE'S BUREAU""
The events at the London Libyan "People's Bureau" on April 17, 1984, highlight the lack of deterrence
against criminal conduct under the Vienna Convention's diplomatic immunity regime.[FN11]A group of
Libyan protestors opposed to Libyan leader Colonel Muammar el-Qaddafi had assembled before the
People's Bureau to protest Colonel Qaddafi's treatment of students in Libya. The group was acting
peaceably when, without warning, machine gun fire coming from the People's Bureau struck the
crowd.[FN12]The gun fire killed one officer of the police contingent which surrounded the
protestors.[FN13]Ten other persons were injured, five seriously.[FN14]British police *180 immediately
surrounded the embassy to prevent entry and exit. British Home Secretary Leon
Brittan[FN15]demanded that Libya allow British police to enter the building to seek suspects and
forensic evidence,[FN16]but was promptly rebuked by Libyan officials.[FN17]
In response to the British action, the Libyan government retaliated by ordering its police to besiege the
British embassy in Tripoli.[FN18]Thirty-five people, including the British ambassador, were held in the
British embassy.[FN19]With each government holding officials of the other hostage, a stalemate
ensued.[FN20]
Subsequently, British officials determined what legally acceptable alternatives were
available.[FN21]British officials concluded that the alternative most likely to result in capture of thegunman was to order the closing of the People's Bureau and to evaluate each occupant's entitlement to
diplomatic immunity under the Vienna Convention.[FN22]Those not deserving an immune status would
be detained for questioning and possible prosecution.[FN23]This alternative, however, was not
implemented for reasons the British government did not explain.
The Libyan government released twenty-five people from the Tripoli embassy on the day following the
shooting despite lack of progress in *181 intensive negotiations between the two
governments.[FN24]The motivation behind this action is unclear. Negotiations continued and the
Libyan government denied repeated British requests to search the People's Bureau.[FN25]However,
the Libyan government offered to send an investigatory team to London whose work would be followed
by prosecution of any suspects in Libyan municipal courts, an offer the British declined.[FN26]Since no
apparent progress in negotiations had been made, the British broke off relations with Libya and ordered
the occupants of the People's Bureau to leave the United Kingdom within seven days.[FN27]The British
guaranteed all occupants safe passage out of Britain and promised not to inspect their bags.[FN28]
On the eleventh day of the siege at the Libyan People's Bureau, the occupants of the People's Bureau
left Britain under escort from British police.[FN29]Simultaneously, the remaining British diplomatic
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personnel held by the Libyan government left for home.[FN30]In London, British police searched and
questioned the Libyans before their departure.[FN31]British police, however, permitted the Libyans'
bags, one of which allegedly contained the weapon used in the shooting, to be taken out of the United
Kingdom without inspection.[FN32]Subsequent to the departure of its occupants, British
police *182 searched the People's Bureau and discovered weapons.[FN33]
The motivation behind the British decision to grant de facto diplomatic immunity[FN34]to all Libyans in
the People's Bureau regardless of actual diplomatic status is a matter of conjecture. Arguably, British
authorities viewed the risk to the eight thousand British nationals in Libya[FN35]and the encircled
British embassy in Tripoli[FN36]as outweighing their desire to prosecute those alleged to be involved in
the shooting.[FN37]
The British decision can also be explained in light of the language in the Vienna Convention. As both the
United Kingdom[FN38]and Libya[FN39]are signatories *183 to the Vienna Convention, the United
Kingdom was obligated to permit Libya to withdraw its accredited diplomatic personnel free of
interference.[FN40]
The Libyan People's Bureau incident illustrates the Vienna Convention's lack of deterrence against
criminal acts. The immunity from criminal prosecution accorded embassy personnel, in effect,
encourages those individuals who are so inclined to violate the receiving state's laws. For example, in
the United States, police in the New York City and Washington, D.C. areas frequently report encounters
with persons engaged in crime who are accorded some degree of diplomatic immunity.[FN41]In
London from 1974 to mid-1984, diplomatic immunity prevented prosecution in 546 cases where
conviction, in a non-diplomatic context, would have included a prison sentence of at least six
months.[FN42]Numerous other instances of criminal conduct shielded from prosecution by diplomatic
immunity have been documented.[FN43]
The Vienna Convention grants receiving states the right to declare a diplomat persona non grata as the
sole means of protection against a diplomat suspected of engaging in criminal conduct. Persona non
grata declarations compel the sending state to recall that individual or to terminate his or her diplomatic
functions which results in the individual being forced to leave the receiving state.[FN44]However, in
instances of murder, such as at the Libyan People's Bureau in London, persona non grata declarations
are inappropriate*184 in comparison to the relatively severe treatment of those convicted for the same
crime in non-diplomatic immunity settings.
The alternative to the persona non grata declaration is the severance of relations between the
concerned states. The United Kingdom pursued this course of action in the Libyan People's Bureauincident.[FN45]The Vienna Convention, however, did not intend to cause the interruption of
international communication which resulted from this incident: rather, it intended to enhance
international relations. Therefore, an alternative which provides a means for avoiding such a disruption
in communication while reducing the incidence of criminal conduct would benefit the international
community. The proposal set forth in the following section attempts to provide such an alternative.
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