Source: https://ihl-databases.icrc.org/customary-ihl/chi/docs/v2_rul_rule141
Timestamp: 2020-04-03 05:41:08
Document Index: 432710433

Matched Legal Cases: ['§ 461', '§ 651', '§ 8', '§ 1505', '§ 105', '§ 0250', '§ 1104', 'Art. 82', 'Art. 82', '§ 1604', '§ 1710', '§ 9', '§ 4', 'art. 82', '§ 16', '§ 11', '§ 77', '§ 11', '§ 10', '§ 11', '§ 4', 'art. 82', '§ 675', '§ 156', '§ 186', '§ 216', '§ 209', '§ 14', '§ 6', '§ 15', '§ 80', '§ 11', '§ 145', '§ 3344', '§ 156', '§ 285']

Customary IHL - Practice Relating to Rule 141. Legal Advisers for Armed Forces
Article 82 of the 1977 Additional Protocol I provides:
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 82. Article 82 was adopted by consensus. CDDH, Official Records, Vol. VI, CDDH/SR.43, 27 May 1977, p. 256.
Belgium’s Law of War Manual (1983), referring to Articles 47 and 49 of the 1949 Geneva Convention I, Articles 48 and 50 of the 1949 Geneva Convention II, Articles 127 and 129 of the 1949 Geneva Convention III, Articles 144 and 146 of the 1949 Geneva Convention IV and Article 82 of the 1977 Additional Protocol I, provides that “the States signatory to the [1949 Geneva] Conventions undertook to take a series of measures to promote respect thereof”, among which it lists “the appointment of legal advisers to military commands”.
The Joint Command and its subordinate commands shall be assisted by a Legal Adviser with regard to military matters and their consequences pursuant to the Law of Armed Conflict and to ensure that all [its] personnel comply with the provisions of the international conventions and agreements to which Brazil is a party, as well as with the provisions of the Rules of Engagement for Non-Combatant Evacuation Operations.
The profile of a legal adviser is defined as follows:
–having undergone thorough training in International Humanitarian Law and the Law of War for legal advisers,
–holding a degree in public law (or, as a minimum, be well versed in legal matters),
–possessing a sound knowledge of public international law,
–having undergone high-level military training and holding a senior military rank.
Within the General Staff, legal advisers provide high-level training for senior officers.
They may also carry out normal General Staff duties and, in particular, ensure the legality of orders related to property that enjoys special protection.
In addition to their General Staff duties, legal advisers may be assigned special tasks.
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. 134, § 461.3.
Cameroon’s Instructor’s Manual (2006) states with regard to the role of legal officers specialized in IHL:
1. Editing of Documents and Advising the Command [in Military Headquarters]
[Their] main responsibility consists of ensuring that … all orders and instructions are in accordance with the law of armed conflict and international humanitarian law.
3. Legal Advisors in the Law of Armed Conflict and International Humanitarian Law…
… participate in the high-level training of senior officers.
… participate in the normative work of the military headquarters and particularly in [ensuring] the conformity of orders regarding specially protected objects.
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, pp. 285–286, § 651.
As a party to [the 1977 Additional Protocol I], Canada has the obligation to ensure that legal advisors are available to advise military commanders on the application of the LOAC and the appropriate instruction to be given to the CF [Canadian Forces]. Legal officers with the Office of the Judge Advocate General fulfil this mandate.
Canada, The Law of Armed Conflict at the Operational and Tactical Level, Office of the Judge Advocate General, 1999, p. 15-2, § 8.
Canada, The Law of Armed Conflict at the Operational and Tactical Levels, Office of the Judge Advocate General, 13 August 2001, § 1505.
105. OTHER LEGAL CONSIDERATIONS APPLICABLE TO OPERATIONS
3. Strategic Guidance and Direction. The strategic-level guidance provided to the commander and any direction on the use of force (such as ROE [rules of engagement]) authorized for the operation must be based upon legal considerations and requirements. There also must be a clear and coherent link between the approved political objectives, military objectives, the legal basis for the operation, the commander’s concept of operations, and the ROE which are authorized for the operation. Therefore, legal staff shall be involved in the planning process at all levels.
Canada, Use of Force for CF Operations, Canadian Forces Joint Publication, Chief of the Defence Staff, B-GJ-005-501/FP-001, August 2008, § 105.3.
Respect for IHL by combatants depends on two factors, prevention and repression.
(a) The measures and means of prevention [include] … :
- The presence of legal advisers for the armed forces.
Chad, Droit international humanitaire, Manuel de l’instructeur en vigueur dans les forces armées et de sécurité, Ministère de la Défense, Présidence de la République, Etat-major des Armées, 2006, p. 107.
The military or civilian authorities have the duty to know international humanitarian law.
This is therefore an individual obligation of the military officers who, however, in view of the increasing complexity of that law, can make use of the help of legal advisers.
Côte d’Ivoire, Droit de la guerre, Manuel d’instruction, Livre III, Tome 2: Instruction de l’élève officier d’active de 2ème année, Manuel de l’instructeur, Ministère de la Défense, Forces Armées Nationales, November 2007, p. 35.
Djibouti’s Manual on International Humanitarian Law (2004) states: “States are bound to respect [international] humanitarian law. The preventive mechanisms include in particular … the appointment of legal advisers to the armed forces.”
Djibouti, Manuel sur le droit international humanitaire et les droits de l’homme applicables au travail du policier, Ministère de l’Intérieur, Direction Générale de la Police, 2004, p. 13.
Hungary’s Military Manual (1992) provides for a series of administrative measures including translation of legal texts and the presence of legal advisers, because “everybody must know the rules”.
Hungary, A Hadijog, Jegyzet a Katonai, Föiskolák Hallgatói Részére, Magyar Honvédség Szolnoki Repülötiszti Föiskola, 1992, p. 31.
Israel’s Manual on the Rules of Warfare (2006) states: “The State of Israel does not perpetrate war crimes and its acts are covered by routine legal advice.”
Italy’s Peace Operations Manual (1994) states that the availability of a legal adviser is always necessary and useful in national detachments of peacekeeping operations in order to dissipate any doubt on the interpretation or applicability of international law.
Italy, Manuale interforze per le operazioni di pace, Stato Maggiore della Difesa, 1994, Part III, No. 1a(4).
The Military Manual (1993) of the Netherlands notes: “States must ensure that legal advisers are available to advise military commanders concerning the application of the law of war.”
Netherlands, Toepassing Humanitair Oorlogsrecht, Voorschift No. 27-412/1, Koninklijke Landmacht, Ministerie van Defensie, 1993, p. IX-1
Section 6 - Experts and legal advisers
0250. Experts
In view of the great importance of correct application of the rules of the humanitarian law of war, experts are to be called in to give training in, and implement, such rules. States should seek, even in peacetime, to train expert personnel to implement the humanitarian law of war and, especially, facilitate the activities of the protecting powers. States may do this in cooperation with the national Red Cross (Red Crescent) organizations.
0251. States should also ensure that legal advisers are available in the armed forces, to advise commanding officers on the application of the humanitarian law of war and on instructing the armed forces in this law. In the Royal Dutch Army, the officers of the Military Legal Service fulfil the functions of legal adviser.
Netherlands, Humanitair Oorlogsrecht: Handleiding, Voorschift No. 27-412, Koninklijke Landmacht, Militair Juridische Dienst, 2005, §§ 0250–0251.
1104. The States should also ensure that legal advisers are available to give military commanders advice on the application of the humanitarian law of war. In the Royal Dutch Army, staff jurists are assigned to larger units for this purpose (C-Command Land Armed Forces and brigade). In a unit with a special mission, even if it is a smaller unit, provision must be made to allocate a staff jurist. The staff jurist has an independent role in the staff, under the commanding officer or chief of staff. He forms part of the command group.
1105. He advises both the commanding officer and the coordinating and special staff officers on the application of the humanitarian law of war. Because of the distinction which must be drawn in principle between civilian population and objects on the one hand and military objectives on the other hand, the functional area for the staff jurists is central (intelligence and operations).
The staff jurist should participate in a planning group as necessary. A special role is assigned to the staff jurist in the targeting process. It goes without saying that the legal adviser’s tasks are wider in the complex targeting process of the air strike forces at operating level than in the targeting process of a brigade. Generally, at higher level, tasks of the allocated staff jurists will be divided up. In a combined joint task force headquarters, for example, jurists will be deployed in the service teams of the combined joint operations centre. A jurist will also be assigned to CJ 5 – the Planning Cell.
Netherlands, Humanitair Oorlogsrecht: Handleiding, Voorschift No. 27-412, Koninklijke Landmacht, Militair Juridische Dienst, 2005, §§ 1104–1105.
New Zealand’s Military Manual (1992) states: “The purpose of this … Manual is to provide interim guidance to members of the New Zealand Defence Force, particularly to legal officers engaged in advising commanders, on the customary and treaty law applicable in armed conflict”.
New Zealand, Interim Law of Armed Conflict Manual, DM 112, New Zealand Defence Force, Headquarters, Directorate of Legal Services, Wellington, November 1992, Introduction, p. xxxiv.
Some armed forces have trained legal advisers attached to their higher echelons and these officers are competent to indicate what the law is as it affects a particular operation or whether a particular operation or whether a particular act is legally acceptable. By [the 1977 Additional Protocol I] Art. 82 the parties to the Protocol are obliged to ensure that such advisers are available …
The Protocol does not indicate the level of command to which these advisers are to be attached, merely providing that, “when necessary”, they will be available to advise “military commanders at the appropriate level”. The requirement only relates to advice concerning the application of the Geneva Conventions and the Protocol. Art. 82 also provides for these legal advisers being employed to advise on “the appropriate instruction to be given to the armed forces” on these documents.
New Zealand, Interim Law of Armed Conflict Manual, DM 112, New Zealand Defence Force, Headquarters, Directorate of Legal Services, Wellington, November 1992, § 1604, including footnote 11; see also § 1710.1, footnote 68.
Nigeria’s Military Manual (1994) notes that Part V Section I of the 1977 Additional Protocol I “recommends for legal advisers to be assigned to Commanders at all time[s]”.
Nigeria, International Humanitarian Law (IHL), Directorate of Legal Services, Nigerian Army, 1994, p. 9, § 9e.
The manual also states: “[Article 82] of Protocol I provides that Commanders may be assisted by special legal advisers … where there’s need.”
Nigeria, International Humanitarian Law (IHL), Directorate of Legal Services, Nigerian Army, 1994, p. 31, § 4.
The Russian Federation’s Military Manual (1990) states:
As far as questions of application of the rules of IHL are concerned, the Commanders … shall, when necessary, turn to the assistance of legal advisers (art. 82 of Additional Protocol I). The officers of the Legal Service have been entrusted to perform this function by an order of the USSR Ministry of Defence.
Russian Federation, Instructions on the Application of the Rules of International Humanitarian Law by the Armed Forces of the USSR, Appendix to Order of the USSR Defence Minister No. 75, 1990, § 16.
In the event of armed conflict, in decisions related to the application of international humanitarian law, commanders, whenever necessary, shall rely on their legal advisers whose functions at the division (regiment) level are vested in the commander’s assistant on legal matters.
In the event of armed conflict the division (regiment) commander’s assistant on legal matters shall carry out the duties of a legal adviser on issues related to the application of international humanitarian law.
- prepare on the commander’s instruction legal statements on the draft combat documents and other papers compliance with international humanitarian law. In case of discrepancy, he shall report to the commander and, if necessary, provide a written clarification;
- advise the command and other officials on, and clarify issues related to the application of, international humanitarian law rules;
- conduct on the commander’s instruction training (methodological) sessions with commissioned officers, take part in international humanitarian law knowledge and application skill tests, including in a combat environment;
- supervise on the commander’s instruction military units’ respect for international humanitarian law; in case of violations, he shall immediately report to the commander and on his instruction organize administrative investigation thereof;
- record and analyse international humanitarian law violations committed by the enemy;
- provide legal support to the division (regiment) command as to the treatment of prisoners of war and detained civilians;
- provide legal support to the investigation of claims and complaints by the civilian population dealing with the behaviour of the military personnel while carrying out their mission;
- provide legal support to the division (regiment) command’s co-operation, in areas of combat operations or in the occupied territories, with the local administration, representatives of the International Committee of the Red Cross, national Red Cross (Red Crescent) societies, and other organizations carrying out humanitarian action in favour of the victims of armed conflicts.
Russian Federation, Regulations on the Application of International Humanitarian Law by the Armed Forces of the Russian Federation, Ministry of Defence of the Russian Federation, Moscow, 8 August 2001, §§ 11–12.
77. … A commander (superior), when considering issues pertaining to IHL rules, shall rely on the assistance of a legal adviser when necessary.
Obligations of the Legal Assistant of a Regiment (1st Rank Ship) Commander
106. … At the time of armed conflicts, the legal assistant of a regiment (1st rank ship) commander shall carry out the obligations of a legal adviser to the regiment (1st rank ship) commander.
Russian Federation, Internal Service Regulations of the Armed Forces of the Russian Federation (Ustav vnutrennei sluzhbi vooruzhennikh sil Rossiskoi Federacii), approved by Decree No. 1495 of the President of the Russian Federation, 10 November 2007, §§ 77 and 106.
Article 82 of [the 1977] Additional Protocol I places an obligation on commanders to ensure that legal advisers are, at all times, available to advise military commanders at the appropriate levels on the application of the LOAC [law of armed conflict] and the appropriate instruction to be given to the armed forces on the subject. This does not only create the duty to ensure the persons are legally trained to advise, but also that legal advisers have sufficient military training and experience to effectively advise commanders.
South Africa, Advanced Law of Armed Conflict Teaching Manual, School of Military Justice, 1 April 2008, as amended to 25 October 2013, Learning Unit 5, pp. 239 and 242.
Spain’s LOAC Manual (1996), referring to Article 82 of the 1977 Additional Protocol I, provides: “The State must ensure that Military Commanders, at the appropriate level, can count on the legal advice necessary for the application of the Law of War and its instruction to the Armed Forces.”
Spain, Orientaciones. El Derecho de los Conflictos Armados, Publicación OR7-004, 2 Tomos, aprobado por el Estado Mayor del Ejército, Division de Operaciones, 18 March 1996, Vol. I, § 11.3.b.(4).
The manual also states: “When legal advisers are available, they shall cooperate in the work of the Chiefs of Staff and, if necessary, perform specific tasks.”
Spain, Orientaciones. El Derecho de los Conflictos Armados, Publicación OR7-004, 2 Tomos, aprobado por el Estado Mayor del Ejército, Division de Operaciones, 18 March 1996, Vol. I, § 10.4.c.(5).
Annex A to the manual, referring to the 1907 Hague Convention IV and the Nuremberg trials, adds:
Protocol I additional to the 1949 Geneva Conventions, specifically Article 82 thereof, provides that legal advisers shall be available to the Armed Forces. That obligation is binding at all times on the High Contracting Parties and in time of armed conflict on those involved in the conflict in particular.
This Article represents an innovation in terms of the previous conventions governing the law of armed conflicts. The origins of the obligation imposed in Article 82 can nevertheless be traced back to previous treaties.
As has been demonstrated … Article 82 [of the 1977 Additional Protocol I] obliges the contracting parties to ensure that legal advisers are available within the Armed Forces with a view to the application of the Geneva Conventions and the Additional Protocols and to the instruction to be given in the Army on the subject. Although the article is vaguely worded, the competent authorities have discretion only with regard to the terms and conditions on which the advice is given, the hierarchical level of the advisers and the method by which they are recruited. As has been pointed out by one author, “the article in question creates the obligation for the high contracting parties to adopt the adequate rules to ensure that legal advisers are available to the armed forces”.
In the case of Spain, the following formula has been adopted within the limits of the methods to implement the terms of Article 82:
1. Existence of a specific technical corps of legal experts specifically belonging to the Armed Forces.
3. The existence of a military legal corps has undeniable advantages, since advice is not provided only in the command decision-making phase but also with regard to the disciplinary and penal repression of violations of the Law of Armed Conflict.
Spain, Orientaciones. El Derecho de los Conflictos Armados, Publicación OR7-004, 2 Tomos, aprobado por el Estado Mayor del Ejército, Division de Operaciones, 18 March 1996, Vol. I, Annex A.
Spain’s LOAC Manual (2007) provides:
States must ensure that legal advisers are available, when necessary, to advise military commanders at the appropriate level on the application of the law of armed conflict and on the instruction to be given to the members of the armed forces on this subject.
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, § 11.3.b.(2).
Annex A to the manual, “Legal Advice”, adds:
Protocol I additional to the Geneva Conventions of 1949 [1977 Additional Protocol I], specifically article 82, establishes that the armed forces must have legal advisers.
This obligation applies to all the High Contracting Parties at all times and to the parties to the conflict in time of armed conflict, in particular.
This article establishes a new provision not included in previous international humanitarian law conventions, although the origins of the obligation established in article 82 can be traced back to earlier conventions.
[A]rticle 82 requires the States Parties to ensure that legal advisers are available to the armed forces to provide them with guidance on the application of the Geneva Conventions and the Additional Protocols and the teaching of the law of armed conflict to military personnel. Although the wording of the article is somewhat vague, the only questions left to the discretion of the competent authorities are the conditions for the use and allocation of these advisers and the way in which they are recruited. As one author put it “Article 82 creates the obligation for the Parties to the Protocol to adopt all appropriate regulations to ensure that legal advisers are available to the armed forces”.
Spain has adopted the following formula to fulfil the provisions of article 82:
1. The armed forces have a specific technical service formed by legal experts.
3. The existence of a military legal service has undeniable benefits, because legal advice is not only provided for command decision-making, but also for the repression of breaches of the law of armed conflict, involving disciplinary or criminal action.
A generally accepted opinion is that proper application of the humanitarian legal rules depends to a large degree on the states’ genuinely following the rules laid down in Article 82 of Additional Protocol I.
Article 82 states that “The High Contracting Parties at all times, and the Parties to the conflict in time of armed conflict, shall ensure that legal advisers are available, when necessary, to advise military commanders at the appropriate level on the application of the [1949 Geneva] Conventions and this Protocol and on the appropriate instruction to be given to the armed forces on this subject”. This is an obligation that Sweden through her ratification of the Protocol has undertaken to put into practice.
The legal advisers associated with the armed forces shall thus act both in peace and in war at appropriate military levels. They shall give general advice concerning instruction in international law within military defence. In this way they will also play a not unimportant part in such training within the civilian parts of the total defence system. Further, they shall give special guidance concerning the application of the rules of international law in both preparations for and the execution of military operations …
It is … crucial that legal advisers, even in peacetime, can ensure that international law is included in instruction and planning.
Sweden, International Humanitarian Law in Armed Conflict, with reference to the Swedish Total Defence System , Swedish Ministry of Defence, January 1991, Section 9, pp. 163 and 164.
The manual also quotes a decision of the Swedish Government of 1990 concerning advisers on international law and the text of the Total Defence Ordinance relating to International Humanitarian Law, containing similar provisions, notably:
The wartime organization of the armed forces shall have appointments for advisers on international law … They shall be stationed at high-level staffs and shall have the task of advising military leaders as to how the rules of international law in war … shall be applied …
The peacetime organization of the armed forces shall have an adviser on international law with the Supreme Commander and one with every General Officer commanding Military Command Area.
The advisers on international law shall participate in the instruction of personnel of the armed forces as to how the rules of international law in war … are to be applied.
Sweden, International Humanitarian Law in Armed Conflict, with reference to the Swedish Total Defence System, Swedish Ministry of Defence, January 1991, Section 9, p. 166 and Appendix (Sections 27 and 28), p. 185.
Uganda’s LOAC Dissemination Directive (2006) provides:
[A]at all appropriate levels of command and during all stages of operational planning and execution of any military operations, legal advisors will provide advice concerning law of war compliance. Advice on law of war compliance will address not only legal constraints on operations but also legal right to employ force.
Uganda, Chief of Defence Forces Directive: Dissemination of the Law of Armed Conflict, Uganda People’s Defence Forces (UPDF), Chief of Defence Forces, 5 May 2006.
Belarus’s Order on Study and Dissemination of IHL (1997), with reference to Article 82 of the 1977 Additional Protocol I, entrusts the military law section of the Ministry of Defence’s legal department with the coordination of the activities of the legal advisers of the armed forces.
Belarus, Order on Study and Dissemination of IHL, 1997, § 4.
Colombia’s Directive No. 10 (2007), whose objective is to prevent the killing of protected persons, states:
With the objective of strengthening the application of international humanitarian law, preventing homicides of protected persons and strengthening the legitimacy of the Armed Forces, the General Command of the Armed Forces must issue precise orders to all personnel of the armed forces with a view to:
3. … Obtaining legal advice pertinent for the planning of operations.
The Russian Federation’s Order on the Publication of the Geneva Conventions and Protocols (1990) requires that Vice-Ministers of Defence and commanders at several levels “charge the officers of the Legal Service of the Ministry of Defence with the duty of legal advisers foreseen by art. 82 of Protocol I”.
Sweden’s Total Defence Ordinance relating to IHL (1990) provides:
The wartime organization of the Armed Forces shall have appointments for advisers on international law of the number decided by the Armed Forces. They shall be stationed at high-level staffs and shall have the task of advising military leaders as to how the rules of international law in war and during neutrality shall be applied. The advisers shall also take part in the planning work of the military staffs.
The Ordinance further states: “The peacetime organization of the Armed Forces shall have an adviser on international law within the Armed Forces and two with every Commander [and] Joint Command.” Moreover, the Ordinance provides for two appointments of advisers on international law for the wartime organization of every director of a regional civil defence and for two appointments of advisers on international law for the wartime organization of every county administrative board. It stipulates that the advisers on international law shall be lawyers.
Sweden, Total Defence Ordinance relating to IHL, 1990, Sections 27–32.
At the international level, the State obligation to respect and ensure respect for international humanitarian law is found in Article 1 common to the 1949 Geneva Conventions and has acquired customary status.
[T]he general obligation to respect and ensure respect for international humanitarian law is the foundation for a number of more specific duties such as … the duty to … assign the necessary legal advisers.
Colombia, Constitutional Court, Constitutional Case No. C-291/07, Judgment of 25 April 2007, p. 61.
At the 27th International Conference of the Red Cross and Red Crescent in 1999, Austria pledged to “strengthen and review the system of legal advisers established under Article 82 of [the 1977 Additional Protocol I] and to undertake to include such advisers in Austrian units participating in international peace-support operations”.
Austria, Pledge made at the 27th International Conference of the Red Cross and Red Crescent, Geneva, 31 October–6 November 1999.
In 1999, in its second periodic report to the Committee on the Rights of the Child under Article 44 of the Convention on the Rights of the Child, Belgium stated: “Mention should be made of certain administrative and educational measures for the enforcement of humanitarian law: … a team of lawyers and an adviser on the law of armed conflicts are attached to each detachment serving abroad.”
Belgium, Second periodic report to the Committee on the Rights of the Child under Article 44 of the Convention on the Rights of the Child, 25 October 2000, UN Doc. CRC/C/83/Add.2, submitted 7 May 1999, § 675.
In 2001, in its initial report to the Committee against Torture, Belgium stated:
In each of the armed forces, advisors in the area of armed conflict may be asked to follow up the contents of the course [organized for the armed forces on armed conflict law] that relate to the prohibition of torture.
Belgium, Initial report to the Committee against Torture, 8 July 2002, UN Doc. CAT/C/52/Add. 2, submitted 14 August 2001, §§ 156 and 157.
In 2006, in its written replies to the questions raised by the Committee on the Rights of the Child with regard to Belgium’s initial report under the Optional Protocol on the Involvement of Children in Armed Conflict, Belgium stated:
The Belgian armed forces have introduced advisers on the law of armed conflict (CDCAs) in military units and headquarters. These advisers are responsible for advising commanders during operations.
Belgium, Written replies to the list of issues to be taken up in connection with the consideration of the initial report of Belgium to the Committee on the Rights of the Child under the Optional Protocol on the Involvement of Children in Armed Conflict, 3 April 2006, UN Doc. CRC/C/OPAC/BEL/Q/1/Add.1, submitted 30 March 2006, p. 8.
In 2006, in its second periodic report to the Committee against Torture, Belgium stated: “The armed forces have introduced a network of advisers on the law of armed conflict (CDCAs) in military units and headquarters who are responsible for advising commanders in this field.”
Belgium, Second periodic report to the Committee against Torture, 14 August 2007, UN Doc. CAT/C/BEL/2, submitted 21 September 2006, § 186(d).
In 1999, the Ministry of Foreign Affairs of Burkina Faso and the ICRC, in cooperation with the Burkinabé Red Cross Society, held the first national seminar on implementation of IHL. The seminar, inter alia, urged Burkina Faso to appoint legal advisers to the armed forces.
ICRC, Advisory Service, 1999 Annual Report, Geneva, 2000, p. 16.
At the 27th International Conference of the Red Cross and Red Crescent in 1999, Burkina Faso pledged to “appoint legal advisers in the armed forces”.
Burkina Faso, Pledge made at the 27th International Conference of the Red Cross and Red Crescent, Geneva, 31 October–6 November 1999.
In 2008, in its fourth periodic report to the Committee on the Rights of the Child, Denmark stated: “The Corps of Military Prosecutors of the National Defence is responsible for the education of military legal advisors to the Danish Defence … who guide the chief military officers in respect of humanitarian international law, for example.”
In 2010, in its written response to the UN Secretary-General concerning the status of the 1977 Additional Protocols, the Permanent Mission of Denmark to the United Nations in New York stated:
The Military Prosecution Service, more specifically the Prosecutors General’s Office, is also responsible for the legal training of Danish military legal advisors. The scheme was created in 1996 to fulfill the obligations to facilitate legal advice to military commanders, in particular in the field of humanitarian law, prescribed by Article 82 of [the 1977] Additional Protocol I.
Denmark, Written response by the Permanent Mission of Denmark to the UN Secretary-General concerning the Status of the Protocols Additional to the Geneva Conventions of 1949 and relating to the protection of victims of armed conflict, Ref. No. 6.B.2.FNNYC, 28 May 2010, p. 2.
In 1999, at a seminar on national implementation of IHL, organised by the ICRC, the Gambia Red Cross Society and the Gambian Department of State for Justice, the participants encouraged the authorities, inter alia, to appoint legal advisers to the armed forces.
ICRC, Advisory Service, 1999 Annual Report, Geneva, 2000, p. 28.
As regards the legal advice on matters regarding international humanitarian law, it is the responsibility of [the] Judge Advocate General. He is supposed to advise the higher military authorities on military, martial and international law related issues referred to him. The Army Rules also provide for reference of legal questions including questions involving [the] interpretation and application of humanitarian law to Deputy Judges Advocate General as well as other subordinate legal personnel within the armed forces.
Report on the Practice of India, 1997, Chapter 6.11.
According to the Report on the Practice of Israel, the International Law Department of the Israel Defense Forces (IDF) is responsible for advising all military commanders on the application of the laws of war in the field.
216. Leading up to and during the recent operations in Gaza, the IDF [Israel Defense Forces] Military Advocate General’s Corps [MAG] provided legal advice on the Law of Armed Conflict to commanders at the General Staff, Regional Command and Divisional levels. The lawyers examined the legality of planned targets, participated in the operational planning process, helped direct humanitarian efforts, and took part in situation assessments, exercises and simulations. Legal advisors also assisted in drafting operational orders and procedures and in preparing legal annexes to such orders.
217. IDF military lawyers were involved in advising commanders on international law aspects of the Gaza Operation. The IDF structure ensures that the IDF legal advisors can provide frank and professional advice. All legal advisers belong to the MAG Corps and are not subordinate to the commanders they advise. According to Israeli law, the head of legal services in the IDF, the Military Advocate General has an independent status outside the military hierarchy in relation to all legal issues. In principal legal aspects the MAG is subject to the guidance and supervision of Israel’s Attorney-General and regularly consults with the Attorney General. In addition, IDF activities, including during active combat, as well as all MAG and Attorney General decisions are subject to judicial scrutiny and review by Israel’s Supreme Court sitting as the High Court of Justice.
Israel, Ministry of Foreign Affairs, The Operation in Gaza 27 December 2008–18 January 2009: Factual and Legal Aspects, 29 July 2009, §§ 216–217; see also § 209.
The Military Advocate General’s Corps
14. The Military Advocate General’s [MAG] Corps is comprised of highly professional and trained lawyers, and is responsible for enforcing the rule of law throughout the IDF. It also provides advice on military, domestic, and international law to the Chief of General Staff and all divisions of the IDF. The decisions and legal opinions of the Military Advocate General are binding on all components of the military.
15. Although he serves on the General Staff of the IDF, the Military Advocate General is legally independent. IDF Supreme Command Orders state that in executing his powers and authority, the Military Advocate General is “subject to no authority but the law.” Thus, the Chief of General Staff has no authority over him regarding legal matters. The Military Advocate General is not subject to direct orders of any superior officers, excluding the Chief of Staff in non-legal matters. As a former Military Advocate General has explained, the Military Advocate General has a unique status in the military:
“Members of the Military Advocate are not subject to the functional command orders of the command ranks that they serve, and the decisions that they make are in their exclusive discretion. The MAG is not subordinate to the Chief of Staff in respect of the exercise of his powers and is not under any command whatsoever – de jure or de facto.”
16. The independence of the Military Advocate General extends to every officer within the Military Advocate General’s Corps. Each is subordinate only to the Military Advocate General and is not subject to direct orders by commanders outside the Corps.
17. The manner in which the Military Advocate General is appointed further evidences his independence. Under the Military Justice Law, the Minister of Defence appoints the Military Advocate General, upon a recommendation of the Chief of General Staff of the IDF. The Military Advocate General’s dual enforcement and advisory responsibilities parallel those of chief military lawyers in other countries, such as the United Kingdom. The units within the Military Advocate General’s Corps that issue legal guidance to the IDF and that examine and prosecute alleged crimes by IDF forces are separate from one another.
Israel, Ministry of Foreign Affairs, Gaza Operation Investigations: An Update, 29 January 2010, §§ 14–17.
In 1999, at a seminar on implementation of IHL organized by the Kenyan Attorney-General’s chambers and the ICRC, the participants encouraged the authorities, inter alia, to step up IHL training for legal advisers to the armed forces.
ICRC, Advisory Service, 1999 Annual Report, Geneva, 2000, p. 42.
In 1999, at a seminar on national implementation of IHL organized by Malawi’s Ministry of Defence, the Law Commissioner, the ICRC and the National Red Cross Society, the participants urged the authorities, inter alia, to provide for the appointment and training of personnel qualified in IHL, including legal advisers to the armed forces.
ICRC, Advisory Service, 1999 Annual Report, Geneva, 2000, p. 44.
In 2010, in its report to the UN General Assembly on the status of the 1977 Additional Protocols, Mexico stated:
Mexico’s armed forces have incorporated instruction and training in international humanitarian law into military doctrine and manuals … There are courses for military defence counsel, so that they can act as legal advisers, on the application of the international humanitarian law pursuant to article 82 of the Additional Protocol I of 1977.
Mexico, Report on the Status of the 1977 Protocols Additional to the Geneva Conventions of 1949, 29 September 2010, § 6(4).
On the basis of an interview with high-ranking officers of the army of the Netherlands, the Report on the Practice of the Netherlands states that the Royal Netherlands Army has legal advisers at all levels higher than brigade level.
Report on the Practice of the Netherlands, 1997, Interview with two high-ranking officers of the Royal Netherlands Army staff, both legal advisers, 15 April 1997, Chapter 6.6.
At the 27th International Conference of the Red Cross and Red Crescent in 1999, Niger pledged to “appoint legal advisers at all levels of the armed forces”.
Niger, Pledge made at the 27th International Conference of the Red Cross and Red Crescent, Geneva, 31 October–6 November 1999.
In 2009, in its sixth periodic report to the Human Rights Committee, Norway stated with regard to the participation of Norwegian Armed Forces in international operations: “[T]rained legal advisers with a high knowledge and expertise within the field of legal and human rights issues are as a rule also part of the national contingents deployed to international operations.”
Norway, Sixth periodic report to the Human Rights Committee, 11 November 2010, UN Doc. CCPR/C/NOR/6, submitted 25 November 2009, § 15.
In 2011, in its report to the Human Rights Council, Somalia stated: “In order to [improve] compliance with IHL, the Government requires the assistance of IHL legal experts to train and advise its armed forces.”
Somalia, Report to the Human Rights Council, 11 April 2011, UN Doc. A/HRC/WG.6/11/SOM/1, § 80.
The purpose of basic training is to prepare career members of the armed forces to join the ranks and to train soldiers and sailors for entry into the auxiliary or professional forces.
… [A]ll curricula cover basic law, ethics, military law, international relations, maritime law (for … military defence counsel) and aeronautical law (for … military defence counsel), and they all make reference to the [1949] Geneva Conventions and their Additional Protocols.
Special mention should be made of the module on the law of armed conflict in the curriculum for defence counsel, which includes both theory and practice components. That training is carried out in cooperation with the Spanish Red Cross Centre for the Study of International Humanitarian Law.
Spain, Report on the Status of the Protocols Additional to the Geneva Conventions of 1949 and relating to the protection of victims of armed conflict, 5 May 2010, Section 1.1.
In 1993, during a debate in the Sixth Committee of the UN General Assembly on the UN programme of assistance in the teaching, study, dissemination and wider appreciation of international law, the representative of Trinidad and Tobago stated that “her delegation noted the growing interest in the legal aspects of peacekeeping operations. Legal advisers attached to such operations should be equipped to tackle the legal problems that might arise.”
Trinidad and Tobago, Statement before the Sixth Committee of the UN General Assembly, UN Doc. A/C.6/48/SR.33, 19 November 1993, § 11.
In 2011, in its core document forming part of Venezuela’s reports on international human rights instruments, Venezuela stated:
Department of Human Rights and International Law of the Ministry of People’s Power for Defence
145. This Department was established by Decision No. DG-98818 of 17 October 1997 of the Ministry of Defence (now the Ministry of People’s Power for Defence) by order of the President of the Republic. It has its basis in articles 133 to 136 of the National Bolivarian Armed Forces Organization Act, in accordance with the guiding principles of the Constitution. The Department is attached to the Office of the Inspector-General of the National Bolivarian Armed Forces in accordance with Decision No. DG-002936 of 8 August 2007. The Department’s remit is to manage, coordinate and implement activities related to human rights and international humanitarian law that are planned, decided or ordered by the Inspector-General of the National Bolivarian Armed Forces. This takes place in accordance with current legislation, in order to promote, facilitate, protect and guarantee those rights within the military and the defence sector and to provide technical assistance to such military and civilian personnel as may require it. It also acts as a body for receiving individual complaints.
Venezuela, Human rights instruments core document forming part of Venezuela’s reports, 22 February 2013, UN Doc. HRI/CORE/VEN/2011, submitted 5 July 2011, § 145.
The ICRC Commentary on the Additional Protocols states with respect to Article 82 of the 1977 Additional Protocol I:
The obligatory character of the present provision was maintained [at the adoption of the Article at the CDDH]. The word “ensure” is a term sometimes used in the Conventions; it means that the Party in question must make sure that the task is executed. There is therefore no justification for thinking that the task itself might be optional. To be more precise, Article 82 creates the obligation for the Parties to the Protocol to adopt all appropriate regulations to ensure that legal advisers are available to the armed forces. The fact that the conditions for the use and allocation of these advisers are regulated in particularly flexible terms (“when necessary”, “at the appropriate level”) does not in any way alter the fact that the creation of the post of legal adviser is obligatory.
Yves Sandoz et al. (eds.), Commentary on the Additional Protocols, ICRC, Geneva, 1987, § 3344.
To fulfil its task of disseminating IHL, the ICRC has delegates around the world teaching armed and security forces that legal advisers shall be available, when necessary, to advise military commanders at the appropriate level on the application of the law of war.
Frédéric de Mulinen, Handbook on the Law of War for Armed Forces, ICRC, Geneva, 1987, § 156.
Delegates also teach that:
To solve specific problems, the superior can:
(a) ask for legal advice;
(b) seek the participation of a legal adviser in the theoretical training;
(c) make a legal adviser participate in normal staff work (e.g. for drafting and/or reviewing orders and instructions, for advice with regard to specifically protected objects).
Frédéric de Mulinen, Handbook on the Law of War for Armed Forces, ICRC, Geneva, 1987, § 285.