LCIL Friday Lecture: 'Competing Theories of Treaty Interpretation and the Divided Application by Investor-State Tribunals of Articles 31 and 32 of the VCLT' - Judge Charles N Brower, Twenty Essex

Lecture summary: It is alleged that the Vienna Convention on the Law of Treaties (VCLT) embodied the victory of Sir Gerald Fitzmaurice’s preference to interpret treaties based on the “ordinary meaning of the words” over Sir Hersh Lauterpacht’s view that one instead should seek to ascertain the treaty parties’ “actual intentions.” But is that so? If, as VCLT Article 31(1) provides, the focus is to be on “the ordinary meaning to be given to the terms of the treaty in their context and in the light of its object and purpose,” and if that “ordinary meaning” is not, as per Article 32, “ambiguous,” “obscure,” “manifestly absurd or unreasonable,” then why should resort to “Supplementary Means of Interpretation” be appropriate at all “in order to confirm the meaning resulting from the application of article 31”? If, as many believe, the VCLT is hierarchical, shouldn’t interpretation be complete when an “ordinary meaning” is established that is “unambiguous,” not “obscure,” and “neither manifestly absurd or unreasonable”? Did those preferring to determine the treaty parties “actual intentions” in fact sneak into the VLCT’s text that provision for supplementary “confirmation” of a clear “ordinary meaning”? Is to that extent the VCLT in fact, as is said of treaties generally, “an agreement to disagree”? In reality, given the sequential submissions in international arbitrations, as well as before international courts and tribunals, each party, beginning with the Applicant’s or Claimant’s Memorial, followed by Respondent’s Counter-Memorial, the Reply Memorial etc., from the start places before the adjudicator all of its arguments under Section 3. of the VCLT (Articles 31-33).

The fact that Article 31’s “General Rule Of Interpretation” and Article 32’s “Supplementary Means Of Interpretation” are presented to the adjudicator as a unit, and not seriatim, has resulted in some arbitral tribunals not treating those two articles of the VCLT as being hierarchical, and instead applying what has become known as the “crucible approach,” i.e., stirring the two in the pot of deliberations as though they were a regulatory potpourri rather than distinct rules, the later to be applied only if the first did not produce an unchallengable “ordinary meaning.” Thus separate approaches to the VCLT have arisen that have raised the question posed by former ICJ President Schwebel: “May Preparatory Work Be Used to Correct Rather Than Confirm the ‘Clear’ Meaning of a Treaty Provision?”

Judge Charles N Brower’s career has been divided between private law practice, first with White & Case LLP in New York City and Washington, D.C., since 2001 as an Arbitrator Member of Twenty Essex Chambers in London, and public service, first with the Office of The Legal Adviser of the U.S. Department of State (1969-73)(successively as Assistant Legal Adviser for European Affairs, Deputy Legal Adviser and Acting Legal Adviser), as Judge of the Iran-United States Claims Tribunal (1983-present), as sub-Cabinet rank Deputy Special Counsellor to the President of the United States dealing with the Iran-Contra affair (1987), as Judge ad hoc of the Inter-American Court of Human Rights (1999-2002)(appointed by Bolivia), and the most -appointed of the only five Americans ever to be appointed Judge ad hoc of the International Court of Justice (2014-2022) (appointed by Colombia (1 case) and the United States (2 cases)).

Judge Brower's book: 'Judging Iran: A Memoir of The Hague, The White House, and Life on the Front Line of International Justice' is available now to pre-order and will be released on 11 April 2023.