Source: https://ihl-databases.icrc.org/customary-ihl/spa/docs/v2_rul_rule22
Timestamp: 2020-06-02 22:11:39
Document Index: 217420416

Matched Legal Cases: ['§ 13', '§ 36', '§ 532', '§ 252', '§ 30', '§ 421', '§ 58', '§ 520', '§ 61', '§ 11', '§ 32', '§ 519', '§ 4', '§ 2', '§ 165', '§ 170', '§ 1', '§ 3', '§ 3', '§ 2', '§ 365']

DIH consuetudinario - Practice Relating to Rule 22. The Principle of Precautions against the Effects of Attacks
Note: Practice concerning the duty to take feasible precautions to spare the civilian population and to avoid injury to civilians and damage to civilian objects – which could apply to operations in offence and/or defence – has been included in Chapter 5 (Precautions in Attack) and is not repeated here. This section contains practice on specific precautions against the effects of attacks not mentioned in Rules 23 and 24, as well as practice referring to such precautions in general without further specification. Although some practice on civil defence has been included, this subject is not dealt with exhaustively.
Article 58(c) of the 1977 Additional Protocol I states that the parties to the conflict shall, to the maximum extent feasible, “take the other necessary precautions to protect the civilian population, individual civilians and civilian objects under their control against the dangers resulting from military operations”.
Protocol Additional to the Geneva Conventions of 12 August 1949, and relating to the Protection of Victims of International Armed Conflicts (Protocol I), Geneva, 8 June 1977, Article 58(c). Article 58 was adopted by 80 votes in favour, none against and 8 abstentions. CDDH, Official Records, Vol. VI, CDDH/SR.42, 27 May 1977, p. 214.
Article 13(1) of the 1977 Additional Protocol II provides: “The civilian population and individual civilians shall enjoy general protection against the dangers arising from military operations.”
Protocol Additional to the Geneva Conventions of 12 August 1949, and relating to the Protection of Victims of Non-International Armed Conflicts (Protocol II), Geneva, 8 June 1977, Article 13(1). Article 13 was adopted by consensus. CDDH, Official Records, Vol. VII, CDDH/SR.52, 6 June 1977, p. 134.
Article 24(2) of the draft Additional Protocol II submitted by the ICRC to the CDDH provided that “constant care shall be taken, when conducting military operations, to spare the civilian population, civilians and civilian objects”.
This provision was adopted in Committee III of the CDDH by 50 votes in favour, none against and 11 abstentions.
CDDH, Official Records, Vol. XIV, CDDH/III/SR.37, 4 April 1975, p. 390, § 13.
Eventually, however, it was deleted in the plenary, because it failed to obtain the necessary two-thirds majority (36 in favour, 19 against and 36 abstentions).
CDDH, Official Records, Vol. VII, CDDH/SR.52, 6 June 1977, p. 135.
Article 11 of the 1956 New Delhi Draft Rules states: “The Parties to the conflict shall, so far as possible, take all necessary steps to protect the civilian population subject to their authority from the dangers to which they would be exposed in attack.”
Paragraph 36 of the 1994 CSCE Code of Conduct states: “The armed forces will take due care to avoid injury to civilians or their property.”
The Code of Conduct on Politico-Military Aspects of Security, adopted at the 91st Plenary Meeting of the Special Committee of the CSCE Forum for Security Co-operation, Budapest, 3 December 1994, incorporated as Decision IV in the CSCE Budapest Document, Towards a Genuine Partnership in a New Era, Doc. RC/1/95, corrected version of 21 December 1994, § 36.
Section 5.4 of the 1999 UN Secretary-General’s Bulletin states: “In its area of operation, the United Nations force shall … take all necessary precautions to protect the civilian population, individual civilians and civilian objects against the dangers resulting from military operations.”
The parties to the conflict shall, to the extent possible, take the other necessary precautions to protect the civilian population, individual civilians and civilian objects under their control against the dangers resulting from military operations.
Cameroon’s Instructor’s Manual (1992) provides: “In all military operations, whether in offence or defence, … areas of civilian habitation, civilian populations [and] … civilian objects must be protected.”
Cameroon, Droit international humanitaire et droit de la guerre, Manuel de l’instructeur en vigueur dans les Forces Armées, Présidence de la République, Ministère de la Défense, Etat-major des Armées, Troisième Division, Edition 1992, p. 150, § 532(2).
Civilian Victims of Armed Conflicts
- civilian areas must be protected;
- populations must be protected.
Cameroon, Droit des conflits armés et droit international humanitaire, Manuel de l’instructeur en vigueur dans les forces de défense, Ministère de la Défense, Présidence de la République, Etat-major des Armées, 2006, p. 60, § 252.
To protect civilians, the parties to a conflict shall, to the maximum extent feasible … take other necessary precautions to protect the civilian population, individual civilians and civilian objects under their control against the dangers resulting from military operations.
Canada, The Law of Armed Conflict at the Operational and Tactical Level, Office of the Judge Advocate General, 1999, p. 4-4, § 30(c).
Canada, The Law of Armed Conflict at the Operational and Tactical Levels, Office of the Judge Advocate General, 13 August 2001, § 421.1.c.
Precautions must be taken with respect to on-going military operations … Precautions must be taken as soon as, and provided that, the mission permits it ( … victims are searched and cared for in a combat area by medical personnel, etc.).
II.3.3. Obligation to protect civilians against the effects of attacks
- take other necessary precautions to protect the civilian population, individual civilians and civilian objects under their control against the dangers resulting from military operations.
To restrict civilian casualties and damage, the means of combat and weapons shall be adapted to the environment of the defence position … When the mission permits, appropriate information and warning shall be given of defence measures endangering civilian persons, so that they can behave accordingly in the event of combat action.
Croatia, Basic Rules of the Law of Armed Conflicts – Commanders’ Manual, Republic of Croatia, Ministry of Defence, 1992, §§ 58 and 61.
Germany’s Military Manual (1992) states: “Civil defence tasks are particularly warning … construction of shelters, and other measures to restore and maintain order.”
Germany, Humanitarian Law in Armed Conflicts – Manual, DSK VV207320067, edited by The Federal Ministry of Defence of the Federal Republic of Germany, VR II 3, August 1992, English translation of ZDv 15/2, Humanitäres Völkerrecht in bewaffneten Konflikten – Handbuch, August 1992, § 520.
Italy, Regole elementari di diritto di guerra, SMD-G-012, Stato Maggiore della Difesa, I Reparto, Ufficio Addestramento e Regolamenti, Rome, 1991, § 61.
Kenya’s LOAC Manual (1997) states: “When the tactical situations permits, defence measures which may affect civilian persons shall be announced by effective advance warning.”
Madagascar’s Military Manual (1994) provides that in the conduct of all military operations, “constant care must be taken to spare the civilian population, as well as civilian objects”.
Madagascar, Le Droit des Conflits Armés, Ministère des Forces Armées, August 1994, Fiche No. 6-O, § 11.
In order to limit civilian casualties and damage, the means of combat and weapons shall be adapted to the environment of the defence position … When the mission permits, information and effective warning must be given concerning defence measures which expose civilians to danger so that they can behave correctly during combat action.
Madagascar, Le Droit des Conflits Armés, Ministère des Forces Armées, August 1994, Fiche No. 6-O, §§ 32 and 35.
The Parties to the conflict shall, to the maximum extent feasible, … take the other necessary precautions to protect the civilian population, individual civilians and civilian objects under their control against the dangers resulting from military operations.
New Zealand, Interim Law of Armed Conflict Manual, DM 112, New Zealand Defence Force, Headquarters, Directorate of Legal Services, Wellington, November 1992, § 519(1)(c).
Nigeria’s Military Manual (1994) states: “Similar to attack is the fact that defence measures which may affect civilian persons shall be announced in advance.”
Peru’s IHL Manual (2004) states: “Defending forces must minimize civilian casualties to the maximum extent feasible by … taking [all] necessary precautions to protect the civilian population from the dangers of military operations.”
Peru’s IHL and Human Rights Manual (2010) states: “Defending forces must minimize civilian casualties to the maximum extent feasible by … taking the necessary precautions to protect the civilian population from the dangers of military operations.”
Spain’s LOAC Manual (1996) requires that “all necessary precautions be taken in order to protect civilians and civilian objects from the effects of attacks”.
Spain’s LOAC Manual (2007) states: “To the extent possible … precautionary measures must be taken to protect civilians and civilian property from the effects of attacks”.
Spain, Orientaciones. El Derecho de los Conflictos Armados, Tomo 1, Publicación OR7–004, (Edición Segunda), Mando de Adiestramiento y Doctrina, Dirección de Doctrina, Orgánica y Materiales, 2 November 2007, § 4.5.a.(2); see also § 2.4.c.(6).
Sweden’s IHL Manual (1991) refers to the obligation enshrined in Article 58(c) of the 1977 Additional Protocol I to “take other precautionary measures for protecting the civilian population, civilian persons and civilian property”. It notes that: “These can include a number of different measures such as the erection of shelters, distribution of information and warnings, direction of traffic, guarding of civilian property and so on.”
Sweden, International Humanitarian Law in Armed Conflict, with reference to the Swedish Total Defence System , Swedish Ministry of Defence, January 1991, Section 3.2.1.5, p. 74.
Switzerland’s Basic Military Manual (1987) specifies that: “To the extent possible, that is, as far as the interests of Swiss national defence allow, … other measures of protection of the civilian population must be taken.”
Switzerland, Lois et coutumes de la guerre (Extrait et commentaire), Règlement 51.7/II f, Armée Suisse, 1987, Article 29(3).
3 must take all other necessary precautions to protect civilians and civilian objects against the danger of the hostilities.
Switzerland, Bases légales du comportement à l’engagement (BCE), Règlement 51.007/IVf, Swiss Army, issued based on Article 10 of the Ordinance on the Organization of the Federal Department for Defence, Civil Protection and Sports of 7 March 2003, entry into force on 1 July 2005, §§ 165 and 170(3). The German language version notes in § 170(3): “must take other necessary [“weitere notwendige”] precautions to protect civilians and also [“auch”] civilian objects against the dangers of military operations [“Kriegshandlungen”]”.
China’s Civil Air Defence Law (1996) states:
Article 2. Civil air defense is a component part of national defense. In light of the need of national defense, the State mobilizes and organizes the masses to take protective measures for preventing or minimizing damage caused by air raid.
Article 8. All organizations and individuals shall have the right of being protected by civil air defense and must perform their duties in civil air defense according to law.
Article 18. Civil air defense works include underground protective structures that are constructed particularly for sheltering people and goods and materials, civil air defense command and medical aid in time of war, and basements that are constructed in combination with the surface buildings and that can be used for air defense in time of war.
Article 29. The State ensures unimpeded civil air defense communications and warning in order that air defense warning signals are promptly and accurately transmitted and sent out and civil air defense is effectively organized and directed.
Article 37. Civil air defense evacuation shall be directed in a unified manner by the people’s governments at or above the county level.
Civil air defense evacuation must be carried out in accordance with the order issued by the State. No organization may go into action without such order.
Article 45. The State develops civil air defense education to help citizens enhance their awareness of the importance of national defense and acquire the basic knowledge and skills of civil air defense.
China, Civil Air Defence Law, 1996, Articles 2, 8, 18, 29, 37 and 45.
Ireland’s Geneva Conventions Act (1962), as amended in 1998, provides that any “minor breach” of the 1977 Additional Protocol I, including violations of Article 58(c), as well as any “contravention” of the 1977 Additional Protocol II, including violations of Article 13(1), are punishable offences.
Uzbekistan’s Law on Civil Defence (2000) states: “Citizens have the right … for the protection of their life, health and property from consequences of military operations.”
Uzbekistan, Law on Civil Defence, 2000, Article 10.
In 2004, in a white paper entitled “China’s National Defense in 2004”, China stated:
As an important part of the national defense and an important aspect of the economic and social development, China’s civil air defense (CAD) refers to measures and actions to mobilize and organize the Chinese people to be prepared against enemy air raids and disastrous events, and to deal with the aftermath of enemy air raids and disastrous events. Resorting to preventive means such as camouflage, cover and evacuation, and adopting measures such as emergency rescue and rush-repair, the CAD serves the purpose of securing the people’s lives and property, reducing losses of national economy and preserving the war potentials. The CAD is built and managed strictly in accordance with the Civil Air Defense Law of the PRC [People’s Republic of China]. The CAD adopts a system of joint leadership by the people’s governments and the military organs with the local people’s governments and the military organs at the county level and above exercising leadership over the CAD work within their respective administrative areas. The basic task of the CAD is to organize the people in CAD building in peacetime and to organize and direct people to fight against air raids in wartime.
China, White Paper of the Government of the People’s Republic of China: China’s National Defense in 2004, December 2004.
The Report on the Practice of Germany states that the precautions required against the effects of attacks have to be taken mainly by the civil defence. It quotes a representative of the Ministry of Internal Affairs, who said at an ICRC expert meeting in Geneva that Germany had an integrated system of assistance to cover both peacetime disaster control and civil defence in case of armed conflict.
Report on the Practice of Germany, 1997, Chapter 1.7.
The Report on the Practice of Indonesia states that members of the Indonesian armed forces should take all necessary precautions to protect the civilian population and civilian objects against the dangers resulting from hostilities.
Report on the Practice of Indonesia, 1997, Chapter 1.7.
On the basis of the reply by Iraq’s Ministry of Defence to a questionnaire, the Report on the Practice of Iraq cites the following examples of precautionary measures taken in Iraqi territory: providing civilians with devices for their protection from the consequences of certain weapons; early warning of the civilian population of imminent enemy military operations; and identification of civilian objects and antiquities.
The Report on the Practice of the Islamic Republic of Iran notes that, following the escalation of the “war of the cities” during the Iran–Iraq War, “serious measures were adopted by the authorities to protect the civilians”, including: construction of shelters in public places; educating civilians through mass media about the precautions they should take during bombardments; the establishment of facilities for the civilians who fled the cities under attack; and the formation of units to deal with the effects of attacks with weapons of mass destruction on cities.
The Report on the Practice of Malaysia notes that the security forces act in conformity with international norms on protecting the civilian population against the dangers resulting from security operations, whether in an international or non-international armed conflict.
According to the Report on the Practice of Nigeria, although no practice exists regarding precautions against the effects of attacks, the duty to take such precautions is a part of customary international law.
Report on the Practice of Nigeria, 1997, Chapter 1.7.
According to the Report on the Practice of Rwanda, it is the opinio juris of Rwanda that precautions must be taken to protect civilians against the effects of attacks.
I would like to begin my remarks on a note of optimism. Significant progress has indeed been made in the evolution of international norms since the genocide in my country 19 years ago. Normative progress is slow, built year by year and resolution by resolution, almost imperceptibly. It can sometimes seem like we are just repeating ourselves, but the cumulative effect is dramatic. Each year, the consensus grows stronger that the protection of civilians and the prevention of crimes, ethnic cleansing, and crimes against humanity are a fundamental duty of each State, as well as a legitimate and necessary focus of collective action in the international system.
Rwanda, Statement by the Minister of Foreign Affairs and Cooperation of Rwanda before the UN Security Council during a meeting on the protection of civilians in armed conflict, UN Doc. S/PV.6917, 12 February 2013, p. 9.
In 2011, in its report to the Human Rights Council, Somalia stated: “The Government forces are also bound to respect customary IHL rules relating to the prohibited methods and means of warfare including … precautions against the effects of attacks”.
Switzerland, Statement by the permanent representative of Switzerland before the UN Security Council on the protection of civilians in armed conflict, 14 January 2009, p. 5.
In 2012, Switzerland’s Federal Department of Foreign Affairs issued a press release entitled “Official visit by the Palestinian President”, which stated:
During the meeting, the Head of the FDFA [Federal Department of Foreign Affairs] expressed his deep concern at the escalation of violence throughout the region. It is crucial that all measures of precaution be taken so as to spare the civilian population from the effects of the hostilities being conducted in one of the most densely populated zones in the world.
Switzerland, Federal Department of Foreign Affairs, “Official visit by the Palestinian President”, Press Release, 15 November 2012.
General Assembly Resolution 2444 (XXIII), adopted in 1968, affirmed Resolution XXVIII of the 20th International Conference of the Red Cross and the basic humanitarian principle applicable in all armed conflicts laid down therein that “distinction must be made at all times between persons taking part in the hostilities and members of the civilian population to the effect that the latter be spared as much as possible”.
UN General Assembly, Res. 2444 (XXIII), 19 December 1968, § 1(c), voting record: 111-0-0-15.
General Assembly Resolution 2675 (XXV), adopted in 1970, states: “In the conduct of military operations, every effort should be made to spare civilian populations from the ravages of war, and all necessary precautions should be taken to avoid injury, loss or damage to civilian populations.”
UN General Assembly, Res. 2675 (XXV), 9 December 1970, § 3, voting record: 109-0-8-10.
The 20th International Conference of the Red Cross in 1965 adopted a resolution on the protection of civilian populations against the dangers of indiscriminate warfare, in which it solemnly declared:
All Governments and other authorities responsible for action in armed conflicts should conform at least to the following principles: … that distinction must be made at all times between persons taking part in the hostilities and members of the civilian population to the effect that the latter be spared as much as possible.
According to the Report on SPLM/A Practice, the SPLM/A instructed the civilian population to dig trenches and shelters against aerial bombardments by the Government of Sudan.
Switzerland’s Basic Military Manual (1987) specifies that precautions against the effects of attacks should be taken in order to protect civilians “to the extent possible, that is, as far as the interests of national defence allow”.
The manual later states: “In case of doubt, the constraints of national defence prevail.”
Switzerland, Lois et coutumes de la guerre (Extrait et commentaire), Règlement 51.7/II f, Armée Suisse, 1987, Article 151(3).
Upon ratification of the 1977 Additional Protocol I, Austria stated: “In view of the fact that Article 58 of Protocol I contains the expression ‘to the maximum extent feasible’, sub-paragraphs (a) and (b) will be applied subject to the requirements of national defence.”
Austria, Reservations made upon ratification of the 1977 Additional Protocol I, 13 August 1982.
At the CDDH, Cameroon considered that the obligations under Article 58 of the 1977 Additional Protocol I “are not absolute, since they are to be fulfilled only ‘to the maximum extent feasible’, for no one is obliged to do the impossible”.
Cameroon, Statement at the CDDH, Official Records, Vol. VI, CDDH/SR.42, 27 May 1977, p. 239.
At the CDDH, the Federal Republic of Germany stated that its understanding of the word “feasible” in Article 58 of the 1977 Additional Protocol I was that it referred to “that which is practicable or practically possible, taking into account all circumstances at the time, including those relevant to the success of military operations”.
Germany, Federal Republic of, Statement at the CDDH, Official Records, Vol. VI, CDDH/SR.42, 27 May 1977, p. 226.
The words “to the maximum extent feasible” at the beginning of [Article 58 of the 1977 Additional Protocol I], however, clearly show the real aim of this rule: this is not a question of absolute obligations, but, on the contrary, of precepts that should be followed if, and to the extent that, the particular circumstances permit.
Italy, Statement at the CDDH, Official Records, Vol. VI, CDDH/SR.42, 27 May 1977, p. 232.
Upon ratification of the 1977 Additional Protocol I, Spain interpreted the term “feasible” as meaning that “the matter in question is feasible or possible in practice, taking into account all the circumstances prevailing at the time, including humanitarian and military aspects”.
Spain, Interpretative declarations made upon ratification of the 1977 Additional Protocol I, 21 April 1989, § 3.
Upon ratification of the 1977 Additional Protocol I, Switzerland stated:
Considering that [Article 58 of the 1977 Additional Protocol I] contains the expression ‘to the maximum extent feasible’, paragraphs (a) and (b) will be applied subject to the defence requirements of the national territory.
Switzerland, Reservations made upon ratification of the 1977 Additional Protocol I, 17 February 1982, § 2.
The Rapporteur of the Working Group at the CDDH reported:
Agreement [on Article 51 of the draft 1977 Additional Protocol I (now Article 59)] was reached fairly quickly on this draft after it was revised to have the phrase “to the maximum extent feasible” modify all subparagraphs. This revision reflected the concern of a number of representatives that small and crowded countries would find it difficult to separate civilians and civilian objects from military objectives. Other representatives pointed out that even large countries would find such separation difficult or impossible to arrange, in many cases.
CDDH, Official Records, Vol. XV, CDDH/III/264/Rev.1, Report to Committee III on the Work of the Working Group submitted by the Rapporteur, 13 March 1975, p. 353.
The commander shall take all feasible precautions. “Feasible precautions” are those precautions which are practicable, taking into account the tactical situation (that is all circumstances ruling at the time, including humanitarian and military considerations).
Frédéric de Mulinen, Handbook on the Law of War for Armed Forces, ICRC, Geneva, 1987, § 365.
Section C. Information required for deciding upon precautions against the effects of attacks
Note: In general, the practice for Rule 15, Section D, concerning the information required to take decisions on precautions in attack is relevant mutatis mutandis to precautions against the effects of attacks and is not repeated here.