1 International Investment Law As Public Law?
1 International Investment Law As Public Law?
1
Friedmann, ‘The Use of “General Principles” in the Development of International Law’, 57 AJIL (1963)
279, at 295.
2
Albeit, naturally, this is a rather ideal-type categorization, since many disputes that are indisputably
private in nature inhere direct and indirect consequences that may affect third parties, if not to say entire
communities.
3
Cf. S.D. Myers, Inc. v. Canada, UNCITRAL (NAFTA), Partial Award, 13 Nov 2000.
4
As in the disputes regarding the Argentine crisis. For an overview of the facts and the unfolding of the
crisis also consult BG Group PLC v. Argentine Republic, UNCITRAL, Final Award, 24 Dec 2007, at paras
16–82. Also see Alvarez and Khamsi, ‘The Argentine Crisis and Foreign Investors – A Glimpse into the
Heart of the Investment Regime’, in K.P. Sauvant (ed.), Yearbook on International Investment Law & Policy
2008–2009 (2009), at 379.
918 EJIL 22 (2011), 909–927
sovereignty and indirectly affects a myriad of stakeholders. Gus van Harten deserves credit for
pointing the international investment community to the public nature of investment disputes.5
The recently published volume, International Investment Law and Comparative Public Law edited
by Stephan W. Schill, seeks to profit from such view by assessing various issues of international
investment law through the public law lens.
As this large collection of essays premises,6 international investment law may be considered a
form of public law because it involves the adjudicatory control of the exercise of public authority,
providing non-state entities with direct rights of action against the host state. Moreover, this
public law system operates on the global level by drawing on both domestic and international
5
G. van Harten, International Investment Treaty Arbitration and Public Law (2007); also see van Harten and
Loughlin, ‘Investment Treaty Arbitration as a Species of Global Administrative Law’, 17 EJIL (2006) 121.
6
Only cf. Schill, ‘International Investment Law and Comparative Public Law – An Introduction’, in the
vol. under review, at 3, 10 ff.
7
See on this S.W. Schill, The Multilateralization of International Investment Law (2009).
8
See, e.g., Hirsch, ‘Investment Tribunals and Human Rights: Divergent Paths’, in P.M. Dupuy, F. Fran-
cioni, and E.-U. Petersmann (eds), Human Rights in International Investment Law and Arbitration (2009), at
97, 107 ff.
9
Ibid., at 108 f.
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as a private entity, but in its capacity as a public entity bestowed with public authority, i.e.,
seizing the other side’s assets, arresting its employees, or adopting legislation effectively eradi-
cating the rights enshrined in the contract? In this case we no longer observe a coordinative
relationship of legal peers. Rather, the relationship is hierarchical and thus vertical rather than
horizontal, for the state does not act in a private capacity but employs instruments of puissance
publique. Such disputes, whether predominantly administrative or constitutional in character,
involve individual rights the private entity can raise against the exercise of public authority by
the government and are thus undoubtedly of a public law character. This situation parallels the
usual situation at issue in an investment dispute.
10
Cf. CME Czech Republic B.V. (The Netherlands) v. Czech Republic, UNCITRAL, Final Award, Separate Opin-
ion by Ian Brownlie, 14 Mar 2003, at paras 72 and 79; also see S. Ripinsky and K. Williams, Damages in
International Investment Law (2008), at 375.
11
There are other collections of essays revolving around similar issues. To give but one example, Dupuy,
Francioni, and E.-U. Petersmann (eds), supra note 8, deals with human rights aspects of international
investment law, and in some parts and contributions touches upon public law analysis; only see Ch III
‘Judicial “Balancing” of Economic Law and Human Rights in Regional Courts’, at 195.
920 EJIL 22 (2011), 909–927
The doctrinal avenue for comparative public law analysis, as the reference to Friedmann12
foreshadowed and as Stephan Schill argues in his introductory contribution, is ‘general princi-
ples of law’ as referred to in Article 38(1)(c) of the Statute of the International Court of Justice.
They provide a source of law to be taken into account when interpreting investment treaties
according to Article 31(3)(c) of the Vienna Convention on the Law of Treaties.13 The relevance
of comparative public law will, so Schill contends, depend on the interpretative leeway inter-
national investment agreements permit. ‘To the extent that investment obligations leave no
room for doubt, the ambit of comparative public law will be limited to a de lege ferenda perspec-
tive. To the extent, however, that there is interpretative leeway, comparative public law can be
12
See supra note 1.
13
Schill, supra note 6, at 26 ff.
14
Ibid., at 31.
15
Ibid. at 32.
16
Also see della Cananea, ‘Minimum Standards of Procedural Justice in Administrative Adjudication’, in
the vol. under review, at 39, 42 f, and 47 f, who, however, presents a brilliant tour de force through 300
years of legal thought in order to flesh out commonly shared due process standards appropriate to guide
international investment law: cf. at 69 ff.
17
See Stephan Schill’s contribution on umbrella clauses, where he acknowledges such a premise, at 317,
336 ff.
18
Compared with 6 to 8 contributions in the three other parts. Also see infra sect 3C.
19
However, see Schill, supra note 18, 341 and infra sect 2B.
20
Such as the title of Jürgen Kurtz’s essay: see Kurtz, ‘The Merits and Limits of Comparativism: National
Treatment in International Investment Law and the WTO’, in the vol. under review, at 243.
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a further question: is the public interest in a global investment law regime that enmeshes
domestic and international law and sets harmonious international standards that strongly
impact on the domestic legal regime a domestic or rather a global or transnational issue?
And if the latter was assumed how did this affect a general ‘public law’ theory of inter-
national investment law?
21
Marboe, ‘State Responsibility and Comparative State Liability for Administrative and Legislative Harm to
Economic Interests’, in the vol. under review, at 377, 411.
22
Kurtz, supra note 21.
23
Occidental Exploration and Production Co. v. Ecuador, LCIA Case No. UN3467, UNCITRAL, Final Award,
1 July 2004, at paras 174 ff.
24
Methanex Corp. v. US, UNCITRAL/NAFTA, Final Award of the Tribunal on Jurisdiction and Merits, 3 Aug
2005, Part IV, Ch B, at paras 28 ff.
25
Kurtz, supra note 21, at 250 ff.
26
Ibid., at 255 ff., 278.
27
Ibid., at 262 ff., 278.
28
I.e., a provision guaranteeing the observation of obligations assumed by the host state vis-à-vis the
investor.
29
Supra note 18, at 330 ff.
30
Ibid., at 337 ff.
922 EJIL 22 (2011), 909–927
host state cannot contract away its power to interfere with investor–state contracts and
bases this claim on customary international law as well as domestic public law.31 Hence he
asserts an ‘implicit police power exception to the operation of the umbrella clause for the
regulation of contracts in the public interest’32 and delineates the standard – proportionality
analysis33 – which he deems most appropriate to decide when the host state should be required
to compensate the investor.34
His argument is convincing and the ‘implicit police power exception’, along with the propor-
tionality test, might even accrue to a kind of litmus test for public interest exceptions to investor
rights. One thought, however, may be added which Schill seems to neglect. In the domestic
31
Ibid., at 340.
32
Also cf. Kingsbury and Schill, ‘Public Law Concepts to Balance Investors’ Rights with State Regulatory
Actions in the Public Interest – the Concept of Proportionality’, in the vol. under review, at 75.
33
Schill, supra note 18, at 341 f.
34
Cf. CME v. Czech Republic, Separate Opinion by Ian Brownlie, supra note 10, at paras 72 and 79.
35
Van Aaken, ‘Primary and Secondary Remedies in International Investment Law and National State
Liability: A Functional and Comparative View’, in the vol. under review, at 721.
36
Ibid., at 723.
37
Ibid., at 749.
38
Cf. Van Harten and Loughlin, supra note 5; van Aaken, supra note 36, at 721.
39
See R. Dolzer and C. Schreuer, Principles of International Investment Law (2008), at 19 ff. For a critical
account of the investment arbitration regime as it stands nowadays see van Harten, ‘Investment Treaty
Arbitration, Procedural Fairness, and the Rule of Law’, in the vol. under review, at 627; see also van
Harten, supra note 5, at 152 ff.
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state’s willingness and ability to abide by the rule of law. Van Aaken’s suggestion presupposes
a well-functioning administration that considers itself bound by an international tribunal’s de-
cision ordering primary remedies. While this may be true for some, national administrations
and governments are usually less willing to comply with the orders and judgments of inter-
national tribunals than they are to follow domestic courts. Moreover, while the enforcement
regime for secondary remedies is rather elaborate and efficient, building on the principles of the
New York Convention and thus on a proven and tested mechanism of international commercial
arbitration, it is difficult to imagine how enforcement of primary remedies should proceed. It is
indeed the general scepticism regarding a host state’s willingness to abide by international rules
40
C. Donnelly, ‘Public–Private Partnerships: Award, Performance, and Remedies’, in the vol. under review,
at 475.
41
Fair and equitable treatment in the investment context is rather a right than a principle, cf. ibid., 475 – at
least this is debatable and hence terminology must be treated with care. Cf. on rights and principles in
legal theory R. Dworkin, Taking Rights Seriously (1977); R. Alexy, Theorie der Grundrechte (1986). More-
over, Donnelly appears sometimes to use fair and equitable treatment and transparency interchange-
ably, cf. Donnelly, supra note 41, 480. This somewhat neglects the fact that the other ‘principles’ she
scrutinizes – such as legitimate expectations, due process and even to some extent proportionality – form
aspects of the fair and equitable treatment standard in international investment law: see Dolzer and
Schreuer, supra note 40, at 133 ff. Correctly, however, at the end of her scrutiny, see Donnelly, supra note
41, at 498: ‘the more overarching principle of fair and equitable treatment’.
42
Kingsbury and Schill, supra note 33.
43
Burke-White and von Staden, ‘The Need for Public Law Standards of Review in Investor-State Arbitra-
tions’, in the vol. under review, at 689.
924 EJIL 22 (2011), 909–927
next to William Burke-White’s and Andreas von Staden’s contribution on public law stand-
ards of review44 in my opinion would have been more suitable, since both essays target public
law standards of review but promote different answers – proportionality on the one hand45 and
margin of appreciation46 on the other. Moreover, Part III referring to ‘Selected Issues’ appears as
a rather random assemblage of various matters. There is no doubt that they are important and
most contributions are excellent. However, one suspects that a clear-cut editorial concept did
not exist when the individual contributions were drafted.
Individual Contributions
Stephan W. Schill, International Investment Law and Comparative Public Law. An
Introduction;
Giacinto della Cananea, Minimum Standards of Procedural Justice in Administrative
Adjudication;
Benedict Kingsbury and Stephan W. Schill, Public Law Concepts to Balance Investors’ Rights
with State Regulatory Actions in the Public Interest. The Concept of Proportionality;
Markus Perkams, The Concept of Indirect Expropriation in Comparative Public Law.
Searching for Light in the Dark;
Stephan W. Schill, Fair and Equitable Treatment, the Rule of Law, and Comparative Public
Law;
Helge Elisabeth Zeitler, Full Protection and Security;
Ali Ehsassi, Cain & Abel. Congruence and Conflict in the Application of the Denial of Justice
Principle;
Jürgen Kurtz, The Merits and Limits of Comparativism: National Treatment in International
Investment Law and the WTO;
Freya Baetens, Discrimination on the Basis of Nationality. Determining Likeness in Human
Rights and Investment Law;
Stephan W. Schill, Umbrella Clauses as Public Law Concepts in Comparative Perspective;
Abba Kolo, Transfer of Funds. The Interaction between the IMF Articles of Agreement and
Modern Investment Treaties. A Comparative Law Perspective;
Irmgard Marboe, State Responsibility and Comparative State Liability for Administrative and
Legislative Harm to Economic Interests;
Hector A. Mairal, Legitimate Expectations and Informal Administrative Representations;
Kim Talus, Revocation and Cancellation of Concessions, Operating Licenses and Other
Beneficial Administrative Acts;
44
Kingsbury and Schill, supra note 33, at 102.
45
Burke-White and von Staden, supra note 44, at 715 ff.
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