Opinion ID: 1611878
Heading Depth: 3
Heading Rank: 5

Heading: The Right to Consular Access under Article 36 of the Vienna Convention on Consular Relations.

Text: The postconviction court found trial counsel breached another essential duty when he failed to inform Jose of his right to consular access under Article 36 of the Vienna Convention. In fact, the court found Article 36 conferred a private enforceable right on Jose to contact the Mexican Consulate officials once he was detained by the Sioux City police. We do not decide today whether the Convention actually creates an individual right to notification. Furthermore, we do not decide whether trial counsel renders ineffective assistance if he fails to inform a client who is a foreign national of the right to consular access. However, we address this provision because we believe all criminal defense attorneys representing foreign nationals should be apprised of Article 36. The Vienna Convention on Consular Relations is a multilateral treaty enacted for the purpose of provid[ing] the right of consular notification and access when a national of a member state is arrested or otherwise detained in another member state. Howard S. Schiffman, Breard and Beyond: The Status of Consular Notification and Access under the Vienna Convention, 8 Cardozo J. Int'l & Comp. L. 27, 28 (2000) [hereinafter Schiffman]; see Linda Jane Springrose, Note, Strangers in a Strange Land: The Rights of Non Citizens under Article 36 of the Vienna Convention on Consular Relations, 14 Geo. Immigr. L.J. 185, 187 (1999) [hereinafter Springrose]. Article 36 of the Vienna Convention is the provision which specifically addresses communication with the foreign national. It provides, in pertinent part: 1. With a view to facilitating the exercise of consular functions relating to nationals of the sending State: .... (b) if he so requests, the competent authorities of the receiving State shall, without delay, inform the consular post of the sending State if, within its consular district, a national of that State is arrested or committed to prison or custody pending trial or is detained in any matter. Any communication addressed to the consular post by the person arrested, in prison, custody or detention shall also be forwarded by the said authorities without delay. The said authorities shall inform the person concerned without delay of his rights under this sub-paragraph. Vienna Convention on Consular Relations, Apr. 24, 1963, art. 36, 21 U.S.T. 77, 101 (emphasis added). Some courts have interpreted the language of his rights to impliedly create a private enforceable right of action in an individual. See United States v. Carrillo, 70 F.Supp.2d 854, 859 (N.D.Ill.1999); United States v. Hongla-Yamche, 55 F.Supp.2d 74, 77-78 (D.Mass.1999). At least one other court has cited two additional factors supporting the creation of a private enforceable right: (1) pre-adoption statements by conference participants expressing the desire to safeguard a foreign national's individual right to notification; and (2) other signatory nations recognizing individual notification rights, such as Mexico, Argentina, Canada, and Paraguay. See United States v. Rodrigues, 68 F.Supp.2d 178, 182-83 (E.D.N.Y.1999). However, many courts have found the Vienna Convention's preamble to indicate the drafters' intent not to provide an individual right, as the preamble explicitly states the Vienna Convention does not intend to benefit individuals. United States v. Lombera-Camorlinga, 206 F.3d 882, 885 (9th Cir.2000); United States v. Li, 206 F.3d 56, 62 (1st Cir.2000); Carrillo, 70 F.Supp.2d at 859; Hongla-Yamche, 55 F.Supp.2d at 77. Courts that have addressed the issue of consular notification are split on whether Article 36 actually creates an individual enforceable right. Compare Breard v. Greene, 523 U.S. 371, 376, 118 S.Ct. 1352, 1355, 140 L.Ed.2d 529, 538 (1998) (Vienna Convention arguably confers an individual right); United States v. Briscoe, 69 F.Supp.2d 738, 745 (D.V.I.1999) (Article 36 confers an individual right); Hongla-Yamche, 55 F.Supp.2d at 78 (same); United States v. Alvarado-Torres, 45 F.Supp.2d 986, 989 (S.D.Cal.1999) (same), with United States v. Tapia-Mendoza, 41 F.Supp.2d 1250, 1253 (D.Utah 1999) (doubting Article 36 confers an individual right); Kasi v. Virginia, 256 Va. 407, 508 S.E.2d 57, 64 (1999) (Article 36 does not create an individual right). The majority of courts assume, without deciding, such a right does exist, and then hold the requested remedy is inappropriate or the defendant did not prove he was prejudiced by the alleged Article 36 violation. See United States v. Santos, 235 F.3d 1105, 1107 (8th Cir.2000); United States v. Chaparro-Alcantara, 226 F.3d 616, 621 (7th Cir.2000); United States v. Cordoba-Mosquera, 212 F.3d 1194, 1196 (11th Cir.2000); Lombera-Camorlinga, 206 F.3d at 885; Li, 206 F.3d at 60; United States v. Martinez-Villalva, 80 F.Supp.2d 1152, 1156 (D.Colo.1999); Carrillo, 70 F.Supp.2d at 859; Rodrigues, 68 F.Supp.2d at 185. Courts have consistently held the exclusion of evidence or dismissal of charges are not remedies afforded by the Vienna Convention. See Chaparro-Alcantara, 226 F.3d at 621-22; Lombera-Camorlinga, 206 F.3d at 885; Carrillo, 70 F.Supp.2d at 861; Rodrigues, 68 F.Supp.2d at 185. Those courts that have found the existence of an individual right have often relied upon Supreme Court dicta in Breard v. Greene . In Breard, the Court noted that Article 36 arguably confers on an individual the right to consular assistance following arrest. Breard, 523 U.S. at 376, 118 S.Ct. at 1355, 140 L.Ed.2d at 538. However, the Court dismissed the habeas corpus petition, finding the petitioner could not prove the Article 36 violation resulted in prejudice. Id. at 377, 118 S.Ct. at 1355, 140 L.Ed.2d at 538. Jurisdictions addressing alleged Article 36 violations have similarly required the individual to demonstrate he was prejudiced by the violation. See Cordoba-Mosquera, 212 F.3d at 1196; State v. Cevallos-Bermeo, 333 N.J.Super. 181, 754 A.2d 1224, 1227-28 (2000). At the postconviction trial, Salvador A. Cicero, an officer of the Mexican Consulate, detailed how a foreign national defendant would benefit from exercising his consular rights. Cicero testified that a Mexican consular officer would explain the significant differences between the American and Mexican criminal justice systems, as well as the severity of the charges. An officer would be available to address the general obstacles presented by cultural barriers, and to monitor the case and assist with interpretation. An officer would help the foreign national to obtain a greater understanding of the charges and maximum sentence, which knowledge would aid the foreign national when considering plea offers and the presentation of his defense. When representing a foreign national criminal defendant, counsel has a duty to investigate the applicable national and foreign laws. See Strickland, 466 U.S. at 690, 104 S.Ct. at 2066, 80 L.Ed.2d at 695(counsel has duty to investigate all relevant laws and facts). Trial [c]ounsel for foreign nationals should always inquire whether the client has been made aware of his right to contact consul, and, if not, [counsel] should advise hi[s] [client] of this right. Springrose, at 188-89. We believe all criminal defense attorneys representing foreign nationals should be aware of the right to consular access as provided by Article 36, and should advise their clients of this right. Criminal defense attorneys are not equipped to provide the same services as the local consulate. Id. at 195. Consular officials can eliminate false understandings and prevent actions which may result in prejudice to the defendant. Id. Thus, consular access may very well make a difference to a foreign national, in a way that trial counsel is unable to provide. Id.