UNITED NATIONS

Distr.
GENERAL GENERAL

A S S E M LY
A/2929
1 J u l y 1955
ORIGINAL ENGLISH

Tenth session

DRAFT INTERNATIONAL COVENANTS ON HUMAN RIGHTS

Annotation

prepared the Secretary-General

55-I7502
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EXPLANATORY NOTE

In resolution 83 ( I X ) , p a r a g r a p h 2 ( a ) , t h e G e n e r a l Assembly r e q u e s t e d
the Secretary-General t o prepare a concise a n n o t a t i o n o f the t e x t o f the d r a f t
international covenants on human r i g h t s . The p r e s e n t document has p r e p a r e d
pursuant t o t h i s resolution.
I t i s divided i n t o t e n chapters. Chapter I g i v e s an o u t l i n e o f the
h i s t o r y o f t h e d r a f t covenants and Chapter I I i n d i c a t e s b r i e f l y c e r t a i n g e n e r a l
problems r e l a t i n g t o t h e d r a f t covenants. The preambles, t h e a r t i c l e on t h e
r i g h t o f peoples and n a t i o n s t o s e l f - d e t e r m i n a t i o n and t h e a r t i c l e s on g e n e r a l
p r o v i s i o n s , w h i c h a r e e i t h e r i d e n t i c a l o r v e r y s i m i l a r i n b o t h d r a f t covenants,
are d e a l t w i t h i n Chapters I I I , IV, and V r e s p e c t i v e l y . Chapters V I and V I I
cover t h e a r t i c l e s on c i v i l a n d p o l i t i c a l r i g h t s and t h e measures o f imple m e n t a t i o i
f o r such r i g h t s . Chapters V I I I and I X c o v e r t h e a r t i c l e s on economic, social
and c u l t u r a l r i g h t s and t h e measures o f i m p l e m e n t a t i o n f o r such r i g h t s . The
f i n a l c l a u s e s , w h i c h a r e common t o b o t h d r a f t covenants, a r e d e a l t w i t h i n
Chapter X.
An a t t e m p t has been made t o p r e s e n t a n a l y t i c a l summaries o f t h e debates
on a l l t h e a r t i c l e s , s e t t i n g o u t t h e main p o i n t s o f substance and i m p o r t a n t
q u e s t i o n s o f d r a f t i n g w h i c h have been r a i s e d . These summaries a r e condensed
' and g e n e r a l i z e d s t a t e m e n t s and do n o t n e c e s s a r i l y r e f l e c t i n e v e r y d e t a i l t h e
views expressed b y p a r t i c u l a r governments. A t t h e end o f each summary, -
r e l e v a n t documents a r e l i s t e d . 1
 ! . J
J

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TABLE OF CONTENTS^

Page

x p l a n a t o r y Note 2
'able o f Contents 3
abbreviations ^+
Jhapter I An o u t l i n e o f t h e h i s t o r y o f t h e d r a f t covenants 5
Chapter I I G e n e r a l problems r e l a t i n g t o t h e d r a f t covenants 21
:hapter I I I The preambles o f b o t h d r a f t covenants 32
Chapter I V The r i g h t o f p e o p l e s and n a t i o n s t o s e l f - d e t e r m i n a t i o n .
( P a r t I , , a r t i c l e 1, o f b o t h d r a f t c o v e n a n t s ) 38
Chapter V G e n e r a l p r o v i s i o n s ( P a r t I I , a r t i c l e s 2-5, of both
d r a f t covenants) ^6
Chapter V I C i v i l and p o l i t i c a l r i g h t s ( P a r t I I I , a r t i c l e s 6-26, o f
t h e d r a f t covenants on c i v i l and p o l i t i c a l r i g h t s ) .... 79
Chapter V I I Measures o f i m p l e m e n t a t i o n : c i v i l and p o l i t i c a l
r i g h t s ( P a r t I V , a r t i c l e s 27-^8, and p a r t V,
a r t i c l e s ^9-50, o f t h e d r a f t covenant on c i v i l and
political rights) 195
Chapter V I I I Economic, s o c i a l and c u l t u r a l r i g h t s ( P a r t I I I ,
a r t i c l e s 6 - l 6 , o f t h e d r a f t covenant on economic,
s o c i a l and c u l t u r a l r i g h t s ) 299
Chapter I X Measures o f i m p l e m e n t a t i o n : economic, s o c i a l and
c u l t u r a l r i g h t s ( P a r t I V , a r t i c l e s 17-25> o f t h e
d r a f t covenant on economic, s o c i a l and c u l t u r a l
rights ) 333
Chapter X F i n a l c l a u s e s ( P a r t V I , a r t i c l e s ?l-5*b o f t h e d r a f t
covenant on c i v i l and p o l i t i c a l r i g h t s , and p a r t V,
a r t i c l e s 26-29 o f t h e d r a f t covenant on economic,
s o c i a l and c u l t u r a l r i g h t s ) 63

l/ A d e t a i l e d t a b l e o f c o n t e n t s i s g i v e n a t t h e b e g i n n i n g o f each
c h a p t e r ( e x c e p t Chapter I ) .
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English
Page k

ABBREVIATIONS

a.i. agenda i t e m
art. article
CHR Commission on Human R i g h t s
com. committee
CSW Commission on t h e S t a t u s o f Women
DC D r a f t i n g Committee
ESC Economic and S o c i a l Council
GA G e n e r a l Assembly
mtg. ' meeting
para. paragraph
plen. plenary
suppl. supplement
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CHAPTER I

AW OUTLIKE OF THE HISTORY OP THE DRAFT COVENANTS

1. I n pursuance o f A r t i c l e 68 o f t h e C h a r t e r t h e Economic and S o c i a l C o u n c i l ;

r e s o l u t i o n 5 ( i ) o f 16 February 19^6, e s t a b l i s h e d a Commission on Human R i g h t s
and i n s t r u c t e d i t t o submit p r o p o s a l s , recommendations and r e p o r t s regarding.,
i n t e r a l i a , an i n t e r n a t i o n a l b i l l o f human r i g h t s . By r e s o l u t i o n 9 ( ) f
21 June 19^6 t h e C o u n c i l f u r t h e r r e q u e s t e d t h e Commission t o submit "suggestions
r e g a r d i n g ways and means f o r t h e e f f e c t i v e i m p l e m e n t a t i o n o f human r i g h t s and
fundamental freedoms".
2. The Commission h e l d i t s f i r s t s e s s i o n f r o m 27 January t o 10 February 19^7-
I t s t u d i e d a number o f d r a f t b i l l s on human r i g h t s and p r o p o s a l s on
implementation^and had a g e n e r a l d i s c u s s i o n on t h e f o r m and c o n t e n t o f an
2/
i n t e r n a t i o n a l b i l l o f human rights-s-
3. Upon t h e r e q u e s t o f t h e Chairman o f t h e Commission, t h e Economic and Socia."
C o u n c i l , i n r e s o l u t i o n k6 ( I V ) approved t h e appointment o f a d r a f t i n g committee
c o n s i s t i n g o f e i g h t members o f t h e Commission, w h i c h was t o p r e p a r e , on t h e
b a s i s o f documentation s u p p l i e d t h e S e c r e t a r i a t , a p r e l i m i n a r y d r a f t o f an
i n t e r n a t i o n a l b i l l o f human r i g h t s .
h. The D r a f t i n g Committee h e l d I t s f i r s t s e s s i o n f r o m 9 "to 25 June 19^7 and
had b e f o r e i t a d r a f t o u t l i n e o f an i n t e r n a t i o n a l h i l l o f human r i g h t s prepared
by t h e S e c r e t a r i a t , a d r a f t i n t e r n a t i o n a l b i l l o f human r i g h t s s u b m i t t e d b y t h e
U n i t e d Kingdom o f Great B r i t a i n and N o r t h e r n I r e l a n d , d r a f t a r t i c l e s o f an
i n t e r n a t i o n a l b i l l o f human r i g h t s s u b m i t t e d b y t h e U n i t e d S t a t e s o f America a i
d r a f t a r t i c l e s o f an i n t e r n a t i o n a l d e c l a r a t i o n o f human r i g h t s s u b m i t t e d t h e
3/
r e p r e s e n t a t i v e o f France.
5. Concerning t h e f o r m w h i c h t h e d r a f t o f an i n t e r n a t i o n a l b i l l m i g h t t a k e ,
two views were p u t f o r w a r d i n t h e D r a f t i n g Committee. One was t h a t t h e d r a f t ,
i n t h e f i r s t i n s t a n c e , should take t h e form o f a d e c l a r a t i o n , t h e other t h a t i t
s h o u l d be i n t h e f o r m o f a c o n v e n t i o n . I t was agreed, however, those who
1/ lE/C.k/vi.k.
2/ ESC ( I V ) , s u p p l . 3.
3/ E/CN.U/21, annexes , , and D.
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f a v o u r e d t h e d e c l a r a t i o n f o r m t h a t i t s h o u l d he accompanied o r f o l l o w e d oy a
c o n v e n t i o n o r c o n v e n t i o n s on s p e c i f i c groups o f r i g h t s . I t was a l s o agreed by
those who f a v o u r e d t h e c o n v e n t i o n f o r m t h a t t h e General Assembly, i n recommending
a c o n v e n t i o n t o Member S t a t e s , m i g h t make a d e c l a r a t i o n w i d e r i n c o n t e n t and
more g e n e r a l i n e x p r e s s i o n . The D r a f t i n g Committee, t h e r e f o r e , decided t o
a t t e m p t t o p r e p a r e two documents, a w o r k i n g paper i n t h e f o r m o f a d e c l a r a t i o n
w h i c h would s e t f o r t h g e n e r a l p r i n c i p l e s o r g e n e r a l s t a n d a r d s o f human r i g h t s ;
and a w o r k i n g paper i n t h e f o r m o f a c o n v e n t i o n w h i c h w o u l d d e f i n e s p e c i f i c r i g h t s
and t h e l i m i t a t i o n s o r r e s t r i c t i o n s i n t h e e x e r c i s e t h e r e o f . The Committee
p r e p a r e d and s u b m i t t e d t o t h e Commission d r a f t a r t i c l e s o f a n i n t e r n a t i o n a l
d e c l a r a t i o n o f human r i g h t s and d r a f t a r t i c l e s o f an i n t e r n a t i o n a l c o n v e n t i o n on
hi
human r i g h t s . The Committee a l s o c o n s i d e r e d t h e q u e s t i o n o f i m p l e m e n t a t i o n
and t r a n s m i t t e d t o t h e Commission a memorandum on t h e s u b j e c t p r e p a r e d b y t h e
5/
Se r e t a r i a t .
5. A t i t s second s e s s i o n ( 2 - 1 7 December 19^7) t h e Commission on Human R i g h t s
. Lecided t h a t t h e t e r m " i n t e r n a t i o n a l b i l l o f human r i g h t s " s h o u l d be a p p l i e d t o

e n t i r e s e r i e s o f documents i n p r e p a r a t i o n , namely, a d e c l a r a t i o n o f human

r i g h t s , a c o n v e n t i o n o r covenant on human r i g h t s and measures o f i m p l e m e n t a t i o n .
I t e s t a b l i s h e d t h r e e w o r k i n g groups : one on t h e d e c l a r a t i o n , one on t h e covenant
and a t h i r d on i m p l e m e n t a t i o n . On t h e b a s i s o f t h e r e p o r t s o f t h e f i r s t two
w o r k i n g g r o u p s ^ t h e Commission d r a f t e d a d e c l a r a t i o n o f human r i g h t s and a
7/
covenant on human r i g h t s . These d r a f t s , t o g e t h e r w i t h t h e r e p o r t o f t h e
8/

w o r k i n g group on implementation,'were t r a n s m i t t e d t o governments f o r

The D r a f t i n g Committee, a t i t s second s e s s i o n (3 - 21 May I9U8), r e v i s e d
o b s e r v a t i o n s , s u g g e s t i o n s and p r o 9/
posals.
;over
t h e d e c l a r a t i o n and t h e covenant, t a k i n g i n t o c o n s i d e r a t i o n t h e comments and
10/
p r o p o s a l s o f governments.

V //21, annexes F and G,

5/ 2 1
/ . ; annex H.
6/ E/CN.4/57 and E/CN.4/56.
7/ ESC (Vl), s u p p l . 1, annexes A and B.
8/ ESC ( V I ) , s u p p l . 1, annex C.
9/ E/CN.V95, annexes A and B.
0/ / / 8 2 / R e v . l and 82/Add.l - 12.
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8. A t i t s t h i r d s e s s i o n (2k May - l 6 June 19^8) t h e Commission once more

r e d r a f t e d t h e d e c l a r a t i o n h u t d i d n o t have t i m e t o c o n s i d e r t h e covenant and
the question o f implementation. The d e c l a r a t i o n t h u s r e d r a f t e d , t o g e t h e r w i t h
t h e d r a f t covenant as p r e p a r e d b y t h e D r a f t i n g Committee and s e v e r a l p r o p o s a l s
on i m p l e m e n t a t i o n , was s u b m i t t e d t o t h e Economic and S o c i a l C o u n c i l ; ^ and was,
i n t u r n , t r a n s m i t t e d b y t h e C o u n c i l , i n . r e s o l u t i o n 151 ( V I l ) , t o t h e General
Assembly.
9 The d r a f t d e c l a r a t i o n was p l a c e d on t h e agenda o f t h e t h i r d session
(21 September - 12 December I9U8) o f t h e General Assembly and was d i s c u s s e d first
12/
i n t h e T h i r d Committee and t h e n i n t h e p l e n a r y . ' On 10 December 19^8 t h e
General Assembly adopted and p r o c l a i m e d t h e U n i v e r s a l D e c l a r a t i o n o f Human E i g h t s
as "a common s t a n d a r d o f achievement f o r a l l peoples and a l l n a t i o n s " . A t the
same t i m e , i n r e s o l u t i o n s 217 E and ( i l l ) , i t r e q u e s t e d t h e C o u n c i l t o ask t h e
Commission t o p r e p a r e , as a m a t t e r o f p r i o r i t y , a d r a f t covenant on human r i g h t s
and d r a f t measures o f i m p l e m e n t a t i o n , and t o examine f u r t h e r t h e q u e s t i o n o f t h e
right of petition. I n r e s o l u t i o n 191 ( V I I l ) t h e C o u n c i l t r a n s m i t t e d these t w o
r e s o l u t i o n s t o t h e Commission f o r t h e a c t i o n contemplated therein.
10. D u r i n g i t s f i f t h s e s s i o n (9 May - 20 June 19?) "the Commission examined
t h e d r a f t covenant, a r t i c l e b y a r t i c l e , b u t d i d n o t consider a d d i t i o n a l a r t i c l e s
w h i c h were proposed i n c l u d i n g a r t i c l e s on economic and s o c i a l r i g h t s . I t d e c i d e d
t o t r a n s m i t t h e d r a f t covenant and t h e a d d i t i o n a l a r t i c l e s t o governments f o r
13/
comments. I t a l s o requested t h e Secretary-General t o prepare a survey o f t h e
a c t i v i t i e s o f U n i t e d N a t i o n s organs and s p e c i a l i z e d agencies i n m a t t e r s falling
w i t h i n t h e scope o f A r t i c l e s 22 - 27 o f t h e U n i v e r s a l D e c l a r a t i o n .
11. On t h e q u e s t i o n o f i m p l e m e n t a t i o n t h e r e were p r o p o s a l s r e g a r d i n g t h e
e s t a b l i s h m e n t o f a n i n t e r n a t i o n a l c o u r t o f human r i g h t s , o f a d hoc committees o r
4

permanent organs, w h i c h would s e t t l e d i s p u t e s a r i s i n g o u t o f t h e i n t e r p r e t a t i o n

11/ ESC ( V I l ) , s u p p l . 2, annexes , and C.

12/ GA ( I I I ) , 3rd Com., 89th - llth, 119th - 167th and 17^ t h - 179th mtgs.;
p l e n . l8oth - 183rd mtgs.
13/ ESC ( I X ) , s u p p l . 10, annexes I and I I .
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or a p p l i c a t i o n o f t h e covenant o r o t h e r w i s e s u p e r v i s e t h e observance o f i t s
p r o v i s i o n s , and t o v h i c h e i t h e r S t a t e s a l o n e , o r i n d i v i d u a l s and groups, as
w e l l as S t a t e s , m i g h t submit p e t i t i o n s o r a p p l i c a t i o n s . Such p r o p o s a l s ,
a c c o r d i n g t o one s c h o o l o f t h o u g h t , w o u l d t e n d t o undermine t h e s o v e r e i g n t y and
independence o f S t a t e s , and were i n c o n f l i c t w i t h t h e whole system o f i n t e r n a t i o n a l
p u b l i c law r e g u l a t i n g t h e r e l a t i o n s between S t a t e s . A m a j o r i t y o f t h e Commission,
however, was i n f a v o u r o f seme system o f i m p l e m e n t a t i o n . There was general
agreement t h a t i f a system o f i m p l e m e n t a t i o n was e s t a b l i s h e d S t a t e s s h o u l d have
the r i g h t t o i n i t i a t e proceedings. O p i n i o n was e v e n l y d i v i d e d as t o w h e t h e r
i n d i v i d u a l s and groups s h o u l d have t h e r i g h t o f p e t i t i o n . I n view of the
c o m p l e x i t y o f t h e m a t t e r , t h e Commission r e q u e s t e d t h e S e c r e t a r y - G e n e r a l to
p r e p a r e a m e t h o d i c a l q u e s t i o n n a i r e on i m p l e m e n t a t i o n on t h e b a s i s o f t h e
proposals. I t d e c i d e d t o t r a n s m i t a l l p r o p o s a l s and s t a t e m e n t s as w e l l as t h e
q u e s t i o n n a i r e ( w h i c h was amended b y t h e Commission) t o governments f o r comment.^
12. I n t h e course o f i t s s i x t h s e s s i o n (27 March - 19 May 1950) t h e Commission
re-examined t h e d r a f t covenant and f o r m u l a t e d measures o f i m p l e m e n t a t i o n , taking
15/
i n t o c o n s i d e r a t i o n t h e comments and o b s e r v a t i o n s o f g o v e r n m e n t s and t h e survey
of t h e a c t i v i t i e s o f U n i t e d N a t i o n s organs and s p e c i a l i z e d agencies i n matters
w i t h i n t h e scope o f a r t i c l e s 22 - 27 of the Universal D e c l a r a t i o n . ^
13- The Commission f i r s t r e v i s e d t h e e x i s t i n g a r t i c l e s ( f i r s t e i g h t e e n a r t i c l e s )
of t h e d r a f t covenant w h i c h were r e l a t e d " t o some o f t h e f u n d a m e n t a l rights of
the i n d i v i d u a l and t o c e r t a i n e s s e n t i a l c i v i l freedoms". Then i t c o n s i d e r e d t h e
question of implementation. I t d e c i d e d t h a t a permanent body, a human r i g h t s
committee, s h o u l d be e s t a b l i s h e d , w h i c h w o u l d r e c e i v e any c o m p l a i n t by any S t a t e
p a r t y t o t h e covenant t h a t a n o t h e r S t a t e p a r t y was n o t g i v i n g e f f e c t t o any
p r o v i s i o n t h e r e o f , and w h i c h w o u l d o f f e r i t s good o f f i c e s t o t h e S t a t e s concerned

/ ESC ( I X ) , s u p p l . 10, annex I I I .

15/ E/CN.4/353 and A d d . l - 11.
16/ E/CN.V36U-
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w i t h a view t o a f r i e n d l y s o l u t i o n o f t h e m a t t e r . The Commission d r a f t e d

a r t i c l e s on t h e establishment., c o m p o s i t i o n and competence o f t h e human r i g h t s
committee.^
Ik. Next t h e Commission t u r n e d i t s a t t e n t i o n t o p r o p o s a l s on economic and
social rights. A f t e r a g e n e r a l debate i t decided t h a t t h e covenant and measures
o f i m p l e m e n t a t i o n t h a t had been d r a f t e d s h o u l d be c o n s i d e r e d as " t h e f i r s t o f
a s e r i e s o f covenants and measures", and t h a t i t w o u l d proceed a t i t s n e x t
s e s s i o n t o c o n s i d e r " a d d i t i o n a l covenants and measures d e a l i n g w i t h economic,
s o c i a l , c u l t u r a l , p o l i t i c a l and o t h e r c a t e g o r i e s o f human r i g h t s " . I t also
de .ided t o secure t h e c o - o p e r a t i o n o f s p e c i a l i z e d agencies i n the drafting of
18/

a r t i c l e s on economic, s o c i a l and c u l t u r a l rights.'

15. F i n a l l y , t h e Commission d e c i d e d t o t r a n s m i t t o t h e C o u n c i l f o r i t s
c o n s i d e r a t i o n d r a f t a r t i c l e s on t h e a p p l i c a t i o n o f t h e covenant t o f e d e r a l
S t a t e s and t o n o n - s e l f - g o v e r n i n g and t r u s t t e r r i t o r i e s , and i t r e q u e s t e d t h e
Secretary-General t o p r e p a r e a r e p o r t on f e d e r a l and t e r r i t o r i a l application
clauses.^
20/
16. The C o u n c i l c o n s i d e r e d ' t h e d r a f t covenant a t i t s e l e v e n t h s e s s i o n
(3 J u l y - 16 August 1950). I t had b e f o r e i t a memorandum c o n t a i n i n g
21/
o b s e r v a t i o n s on t h e d r a f t covenant ' and a r e p o r t on f e d e r a l and t e r r i t o r i a l
22/
a p p l i c a t i o n c l a u s e s ' both by t h e Secretary-General, and a r e p o r t o f UNESCO
23/
on r e g u l a t i o n s c o n c e r n i n g economic and s o c i a l rights.
IT. I n r e s o l u t i o n ( X I ) t h e C o u n c i l approved t h e d e c i s i o n o f t h e Commission
t o c o n s i d e r " a d d i t i o n a l covenants and measures d e a l i n g w i t h economic, s o c i a l ,
c u l t u r a l , p o l i t i c a l and o t h e r c a t e g o r i e s o f human r i g h t s " ; and i n
17/
r e s o l ESC
u t i o n( X l s u p( pXll.) i5, t pr ae rq au se .s t ejk-h6
), D d t h eand
S e c rannex
e t a r yI- G.e n e r a l t o consult specialized
18/ ESC ( X I ) , s u p p l . 5, p a r a s . 29-33.
19/ ESC ( X l ) , s u p p l . 5^ p a r a s , 25-26 and annex I , a r t s . ^3 and kh,
20/ ESC ( X I ) , p l e n . 377th-379th mtgs.; E/AC.7/SR.139-157 and 159.
21/ E/L.68.
22/ E/1732.
23/ E/1752.
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agencies on m a t t e r s r e l a t i n g t o economic, s o c i a l and c u l t u r a l r i g h t s .

Furthermore, t h e C o u n c i l adopted r e s o l u t i o n 303 I ( X I ) b y w h i c h t h e General
Assembly was r e q u e s t e d t o make p o l i c y d e c i s i o n s r e g a r d i n g :
(a) The g e n e r a l adequacy o f t h e f i r s t eighteen a r t i c l e s ;
(b) The d e s i r a b i l i t y o f i n c l u d i n g s p e c i a l a r t i c l e s on t h e a p p l i c a t i o n
o f t h e covenant t o f e d e r a l S t a t e s and t o n o n - s e l f - g o v e r n i n g and
trust territories ;
(c) The d e s i r a b i l i t y o f i n c l u d i n g a r t i c l e s on economic, s o c i a l and
c u l t u r a l r i g h t s ; and
(d) The adequacy o f t h e a r t i c l e s r e l a t i n g t o i m p l e m e n t a t i o n .
I n t h e same r e s o l u t i o n t h e C o u n c i l r e q u e s t e d Member S t a t e s t o submit t h e i r
o b s e r v a t i o n s on t h e d r a f t covenant.
18. A t i t s f i f t h s e s s i o n (19 September - 15 December 1950) t h e General Assembly
2k/
s t u d i e d t h e q u e s t i o n s o f p o l i c y r e l a t i n g t o t h e d r a f t c o v e n a n t ' and made t h e
following decisions.
19. W i t h r e s p e c t t o t h e " g e n e r a l adequacy o f t h e f i r s t eighteen a r t i c l e s " , t h e
Assembly i n r e s o l u t i o n h21 (v), a f t e r e x p r e s s i n g t h e o p i n i o n t h a t t h e l i s t o f
r i g h t s i n these a r t i c l e s "does n o t c o n t a i n c e r t a i n o f t h e most e l e m e n t a r y r i g h t s "
and t h a t t h e w o r d i n g o f thos.; a r t i c l e s " s h o u l d be improved i n order t o p r o t e c t
more e f f e c t i v e l y t h e r i g h t s t o w h i c h t h e y r e f e r " , c a l l e d upon t h e C o u n c i l t o
r e q u e s t t h e Commission t o r e v i s e t h e d r a f t covenant " w i t h a v i e w t o t h e a d d i t i o n
i n t h e d r a f t covenant o f o t h e r r i g h t s " and w i t h a v i e w t o d e f i n i n g " t h e r i g h t s
s e t f o r t h i n t h e covenant and t h e l i m i t a t i o n s t h e r e t o w i t h t h e g r e a t e s t p o s s i b l e
precision".
20. Regarding t h e f e d e r a l and t e r r i t o r i a l a p p l i c a t i o n c l a u s e s , t h e Assembly, i n
r e s o l u t i o n s h21 (v) and ^22 (v) r e s p e c t i v e l y , c a l l e d upon t h e C o u n c i l t o
r e q u e s t t h e Commission t o s t u d y a f e d e r a l S t a t e a r t i c l e and t o p r e p a r e
recommendations "which w i l l have as t h e i r purpose t h e s e c u r i n g o f t h e maximum
e x t e n s i o n o f t h e covenant t o t h e c o n s t i t u e n t u n i t s o f f e d e r a l S t a t e s and t h e
m e e t i n g o f t h e c o n s t i t u t i o n a l problems o f f e d e r a l S t a t e s " ; and t o i n c l u d e t h e
f o l l o w i n g a r t i c l e i n t h e covenant :

2k/ GA ( V ) , 3rd Com., 2o7th-3l6th and 318th mtgs.; p l e n . 317th mtg.

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"The p r o v i s i o n s o f t h e p r e s e n t covenant s h a l l extend t o o r be

a p p l i c a b l e e q u a l l y t o a s i g n a t o r y m e t r o p o l i t a n S t a t e and t o a l l t h e
t e r r i t o r i e s , be t h e y n o n - s e l f - g o v e r n i n g , t r u s t o r c o l o n i a l t e r r i t o r i e s ,
w h i c h are b e i n g a d m i n i s t e r e d o r governed b y such m e t r o p o l i t a n S t a t e " .
21. On t h e q u e s t i o n o f economic, s o c i a l and c u l t u r a l r i g h t s , t h e Assembly, I n
r e s o l u t i o n 421 E (v), d e c l a r e d t h a t " t h e enjoyment o f c i v i l and political
freedoms and o f economic, s o c i a l and c u l t u r a l r i g h t s a r e i n t e r c o n n e c t e d and
i n t e r d e p e n d e n t " and t h a t "when d e p r i v e d o f economic, s o c i a l and c u l t u r a l r i g h t s
man does n o t r e p r e s e n t t h e human p e r s o n whom t h e U n i v e r s a l D e c l a r a t i o n regards
as t h e i d e a l o f t h e f r e e man"; and decided " t o i n c l u d e i n t h e covenant on human
r i g h t s economic, s o c i a l and c u l t u r a l r i g h t s and an e x p l i c i t r e c o g n i t i o n o f
e q u a l i t y o f man and woman i n r e l a t e d r i g h t s as s e t f o r t h i n t h e C h a r t e r o f t h e
U n i t e d N a t i o n s " , and r e q u e s t e d t h e Commission t h r o u g h t h e C o u n c i l " t o i n c l u d e
i n t h e d r a f t covenant a c l e a r e x p r e s s i o n o f economic, s o c i a l and c u l t u r a l r i g h t s
i n a manner w h i c h r e l a t e s them t o t h e c i v i c and p o l i t i c a l freedoms p r o c l a i m e d
by t h e d r a f t covenant".
22. F i n a l l y , t h e Assembly d i s c u s s e d t h e q u e s t i o n o f i m p l e m e n t a t i o n . In
r e s o l u t i o n k-21 F (v) i t c a l l e d upon t h e C o u n c i l t o r e q u e s t t h e Commission
" t o proceed w i t h t h e c o n s i d e r a t i o n o f p r o v i s i o n s , t o be i n s e r t e d i n t h e d r a f t
covenant o r i n s e p a r a t e p r o t o c o l s , f o r t h e r e c e i p t and e x a m i n a t i o n o f p e t i t i o n s
f r o m i n d i v i d u a l s and o r g a n i z a t i o n s w i t h r e s p e c t t o a l l e g e d v i o l a t i o n s o f t h e
25/
covenant", and t o t a k e i n t o c o n s i d e r a t i o n a number o f p r o p o s a l s on measures o f
implementation.
23. I n a d d i t i o n t o t h e p o l i c y q u e s t i o n s on w h i c h t h e Corancil had r e q u e s t e d
d e c i s i o n s , t h e Assembly t o o k up t h e r i g h t o f s e l f - d e t e r m i n a t i o n and, i n
r e s o l u t i o n U21 D (v), c a l l e d upon t h e C o u n c i l t o r e q u e s t t h e Commission " t o s t u d y
ways and means w h i c h would ensure t h e r i g h t o f peoples and n a t i o n s t o s e l f -
d e t e r m i n a t i o n and t o prepare recommendations" t h e r e o n .
2k. A t i t s t w e l f t h s e s s i o n (20 F e b r u a r y - 21 March 1951) "the Economic and S o c i a l
C o u n c i l c o n s i d e r e d General Assembly r e s o l u t i o n s 421 (V) and 422 (v) on t h e
26/
d r a f t covenant as w e l l as communications f r o m I L 0 and UNESCO' c o n c e r n i n g
25/ A/C.3/L.78, 81, 91 ( R e v . l ) and 93.
26/ ESC ( X I I ) , annexes, a . i . 12, E/l88o/Add.l and 7 .
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c o - o p e r a t i o n between t h e Commission and t h e s p e c i a l i z e d agencies w i t h r e g a r d t o

economic, s o c i a l and c u l t u r a l r i g h t s . I n r e s o l u t i o n 3^+9 ( X I l ) t h e C o u n c i l
t r a n s m i t t e d t h e Assembly r e s o l u t i o n s t o t h e Commission and i n v i t e d t h e
s p e c i a l i z e d agencies t o p a r t i c i p a t e i n t h e work o f t h e Commission r e l a t i n g t o
economic, s o c i a l and c u l t u r a l rights.
25. The S e c r e t a r y - G e n e r a l p r e s e n t e d t o t h e Commission a t i t s seventh session
27/
( l 6 A p r i l - 19 May I 9 5 I ) a c o m p i l a t i o n o f o b s e r v a t i o n s on t h e d r a f t c o v e n a n t
s u b m i t t e d b y governments i n pursuance o f C o u n c i l r e s o l u t i o n 303 I ( X l ) and
Assembly r e s o l u t i o n ^21 H (v), an a n a l y s i s o f t h e p o l i c y d e c i s i o n s o f t h e
28/
A s s e m b l y , a memorandum on t h e g e n e r a l adequacy o f t h e f i r s t e i g h t e e n
29/ 30/
a r t i c l e s , a memorandum on economic, s o c i a l and c u l t u r a l r i g h t s , ' a memorandum
31/
on measures o f i m p l e m e n t a t i o n ' and a memorandum on c o - o p e r a t i o n between t h e
Commission and t h e s p e c i a l i z e d agencies i n m a t t e r s r e l a t i n g t o economic, s o c i a l
32/
and c u l t u r a l rights.
26. The Commission devoted i t s e l f f i r s t t o t h e d r a f t i n g o f a r t i c l e s on economic,
s o c i a l and c u l t u r a l r i g h t s , t h e n t o f o r m u l a t i n g p r o v i s i o n s on a system o f p e r i o d i c
r e p o r t s , and f i n a l l y t o r e c o n s i d e r i n g t h e p r o v i s i o n s o f t h e human r i g h t s
33/
committee. The r e p r e s e n t a t i v e s o f ILO, UNESCO and WHO p a r t i c i p a t e d i n t h e
Commission's d e l i b e r a t i o n s .
27. On t h e b a s i s o f t h e p r o p o s a l s o f governments and s u g g e s t i o n s o f s p e c i a l i z e d
agencies,'the Commission d r a f t e d f o u r t e e n a r t i c l e s on economic, s o c i a l and
cultural rights. I t t h e n f o r m u l a t e d t e n a r t i c l e s on measures o f i m p l e m e n t a t i o n ,
under w h i c h S t a t e s p a r t i e s t o t h e covenant would submit p e r i o d i c r e p o r t s
c o n c e r n i n g t h e p r o g r e s s made i n a c h i e v i n g t h e observance o f human r i g h t s .
F i n a l l y , t h e Commission r e v i s e d t h e p r o v i s i o n s c o n c e r n i n g t h e human r i g h t s
committee, b u t d i d n o t c o n s i d e r a p r o p o s a l c o n c e r n i n g a " p r o t o c o l on p e t i t i o n s

27/ E/CN.V552.
28/ E/CN.513
29/ S/CN.V528.
30/ E/CN/529.
31/ E/CN / 5 3 0 .
32/ E/Cll.h/^h and Add. 1-3-
33/ ESC ( X I I I ) , s u p p l . 9, p a r a s . 29-90 and annex I ,
3ty /// and Add. 1-5 .
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from i n d i v i d u a l s and o r g a n i z a t i o n s " and a " p r o p o s a l r e l a t i n g t o t h e

e s t a b l i s h m e n t o f an o f f i c e o f t h e U n i t e d N a t i o n s h i g h commissioner f o r human
rights".^
28. The Commission d i d n o t d e c i d e whether t h e a r t i c l e s on t h e human r i g h t s
committee s h o u l d be a p p l i e d t o economic, s o c i a l and c u l t u r a l r i g h t s as w e l l as
c i v i l and p o l i t i c a l r i g h t s , n o r d i d i t d e c i d e whether t h e a r t i c l e s on t h e
r e p o r t i n g procedure s h o u l d be a p p l i e d t o c i v i l and p o l i t i c a l r i g h t s as w e l l as
economic, s o c i a l and c u l t u r a l rights.
29. A l t h o u g h i t was g e n e r a l l y agreed t h a t economic, s o c i a l and c u l t u r a l rights
on t h e one hand, and c i v i l and p o l i t i c a l r i g h t s on t h e o t h e r , were e q u a l l y
1
i m p o r t a n t , t h e o p i n i o n was expressed t h a t t h e f o r m e r were n o t j u s t i c i a b l e rights
and t h e method o f t h e i r i m p l e m e n t a t i o n was t h e r e f o r e d i f f e r e n t . A p r o p o s a l was
made w h i c h would recommend t o t h e C o u n c i l t h a t t h e General Assembly be r e q u e s t e d
t o r e c o n s i d e r i t s d e c i s i o n t o i n c l u d e economic, s o c i a l and c u l t u r a l r i g h t s i n t h e
36/
same covenant w i t h c i v i l and p o l i t i c a l r i g h t s . T h i s p r o p o s a l , however, was n o t
adopted.
30. The d r a f t covenant was d i s c u s s e d b y t h e Economic and S o c i a l C o u n c i l a t i t s
thirteenth s e s s i o n (30 J u l y - 21 September 1951 ) The q u e s t i o n was r a i s e d
whether t h e human r i g h t s committee procedure and t h e p e r i o d i c r e p o r t i n g
procedure, r e s p e c t i v e l y , s h o u l d be a p p l i e d t o c i v i l and p o l i t i c a l r i g h t s , o r
economic, s o c i a l and c u l t u r a l r i g h t s , o r b o t h c a t e g o r i e s o f r i g h t s . Conscious
o f t h e d i f f i c u l t i e s w h i c h m i g h t f l o w f r o m embodying i n one covenant two d i f f e r e n t
c a t e g o r i e s o f r i g h t s , and a t t h e same t i m e aware o f t h e importance o f b o t h ,
the Council, i n resolution 38^ ( X I I l ) i n v i t e d " t h e General Assembly t o
reconsider i t s decision i n resolution U21 E (v) t o i n c l u d e i n one covenant
a r t i c l e s on economic, s o c i a l and c u l t u r a l r i g h t s , t o g e t h e r w i t h a r t i c l e s on
c i v i l and p o l i t i c a l rights".

35/ ESC ( X I I I ) , s u p p l . , annexes V and V I .

36/ E/CN.V619/R6V.I.
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31. The d r a f t covenant was t h e s u b j e c t o f a l o n g debate a t t h e s i x t h session

37/
(6 November 1951 - 5 February 1952) o f t h e General A s s e m b l y . '
32. I n r e s o l u t i o n 5^3 ( V l ) t h e Assembly d e c i d e d t o r e q u e s t t h e Economic and
S o c i a l C o u n c i l t o a s k t h e Commission on Human R i g h t s :
"To d r a f t t w o covenants on human r i g h t s ..., one t o c o n t a i n c i v i l
and p o l i t i c a l r i g h t s and t h e o t h e r t o c o n t a i n economic, s o c i a l and
c u l t u r a l r i g h t s , i n o r d e r t h a t t h e General Assembly may approve t h e two
covenants s i m u l t a n e o u s l y and open them a t t h e same t i m e f o r s i g n a t u r e , t h e
two covenants t o c o n t a i n , i n o r d e r t o emphasize t h e u n i t y o f the a i m i n
v i e w and t o ensure r e s p e c t f o r and observance o f human r i g h t s , as many
s i m i l a r p r o v i s i o n s as p o s s i b l e ..."
I t a l s o r e q u e s t e d Member S t a t e s and s p e c i a l i z e d agencies t o submit d r a f t s o r
memoranda on t h e form and c o n t e n t s o f t h e proposed covenant on economic, s o c i a l
and c u l t u r a l r i g h t s . F u r t h e r , i n r e s o l u t i o n 5kk ( V l ) , t h e Assembly c a l l e d upon
t h e C o u n c i l t o a s k t h e Commission t o r e v i s e t h e d r a f t a r t i c l e s on economic, s o c i a l
and c u l t u r a l r i g h t s and t o t a k e i n t o c o n s i d e r a t i o n t h e views o f governments,
s p e c i a l i z e d agencies and non-governmental o r g a n i z a t i o n s .
33> W i t h r e s p e c t t o t h e q u e s t i o n o f i m p l e m e n t a t i o n , t h e Assembly i n
38
r e s o l u t i o n 5^7 ( V I ) f o r w a r d e d t o t h e Commission a number o f a d d i t i o n a l p r o p o s a l s '
as w o r k i n g papers.
3^. The q u e s t i o n o f r e s e r v a t i o n s was b r o u g h t up i n connexion w i t h t h e d r a f t
covenants. I n r e s o l u t i o n 5 ( V l ) t h e Assembly t h r o u g h t h e C o u n c i l i n s t r u c t e d t h e
Commission t o prepare "one o r more c l a u s e s r e l a t i n g t o t h e a d m i s s i b i l i t y o r
n o n - a d m i s s i b i l i t y o f r e s e r v a t i o n s and t o t h e e f f e c t t o be a t t r i b u t e d t o them".
F i n a l l y , i n r e s o l u t i o n 5^5 ( V l ) t h e Assembly d e c i d e d t o i n c l u d e i n t h e covenants
an a r t i c l e w h i c h s h o u l d p r o v i d e t h a t " a l l peoples s h a l l have t h e r i g h t t o
s e l f - d e t e r m i n a t i o n " , and s h o u l d " s t i p u l a t e t h a t a l l S t a t e s , i n c l u d i n g those
having r e s p o n s i b i l i t y f o r the a d m i n i s t r a t i o n o f non-self-governing territories,
s h o u l d promote t h e r e a l i z a t i o n o f t h a t r i g h t , i n c o n f o r m i t y w i t h t h e purposes and
37/ GA ( V I ) , 3rd. Com., 358th-372nd and 387th-kLlth mtgs.; p l e n . 37^th-375th mtgs.
annexes a . i . 29, /.3/559 and A/2112.
38/ A/C3/L.19l/Rev.2 and 3, 193, 195 and 195/Rev.2, 196 and 196/Rev.2 and
198/Rev.2.
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principles o f t h e U n i t e d N a t i o n s , and t h a t S t a t e s h a y i n g r e s p o n s i b i l i t y f o rthe

a d m i n i s t r a t i o n o f n o n - s e l f - g o v e r n i n g t e r r i t o r i e s s h o u l d promote t h e r e a l i z a t i o n
of that r i g h t i n r e l a t i o n t o t h e peoples o f such t e r r i t o r i e s " .
35* The Economic and S o c i a l C o u n c i l , i n r e s o l u t i o n 4l5 (S-l), transmitted t o
the Commission t h e A s s e m b l y - r e s o l u t i o n s on t h e d r a f t covenants and r e q u e s t e d i t t o
p r e p a r e t w o covenants a l o n g t h e l i n e s i n d i c a t e d b y t h e Assembly.
36. The S e c r e t a r y - G e n e r a l p r e s e n t e d t o t h e Commission a t i t s e i g h t h s e s s i o n
( l 4 A p r i l - l 4 June 1952), a memorandum on t h e Assembly and C o u n c i l r e s o l u t i o n s
39 /
c o n c e r n i n g t h e d r a f t c o v e n a n t s , a memorandum on t h e " g e n e r a l adequacy o f t h e
4o/
f i r s t e i g h t e e n a r t i c l e s " , ' a memorandum on economic, s o c i a l and c u l t u r a l
41/
r i g h t s , ' o b s e r v a t i o n s o f Member S t a t e s and s p e c i a l i z e d agencies on t h e proposed
42/
covenant on economic, s o c i a l and c u l t u r a l r i g h t s , a memorandum on measures o f
43/ 44/
i m p l e m e n t a t i o n ' a n d a r e p o r t on t h e f e d e r a l c l a u s e . '
37 The Commission s t a r t e d t o work on t w o covenants, one on economic, social
45/
and c u l t u r a l r i g h t s and one on c i v i l and p o l i t i c a l r i g h t s . First i t drafted
an a r t i c l e on t h e r i g h t o f peoples and n a t i o n s t o s e l f - d e t e r m i n a t i o n and d e c i d e d
t h a t t h e a r t i c l e s h o u l d be a r t i c l e 1 o f each covenant. Then i t proceeded t o
r e v i s e t h e a r t i c l e s on economic, s o c i a l and c u l t u r a l r i g h t s and t h e a r t i c l e s on
c i v i l and p o l i t i c a l r i g h t s , on t h e b a s i s o f p r e v i o u s d r a f t s and t a k i n g into
consideration the instructions o f t h e Assembly and t h e C o u n c i l and t h e
o b s e r v a t i o n s o f governments and s p e c i a l i z e d a g e n c i e s . E v e n t u a l l y , I t adopted a
preamble and f i f t e e n a r t i c l e s f o r t h e covenant on economic, s o c i a l and c u l t u r a l
r i g h t s and a preamble and e i g h t e e n a r t i c l e s f o r t h e covenant on c i v i l and p o l i t i c a l
46/
rights. A p r o p o s a l ' w a s made t h a t t h e Commission s h o u l d r e q u e s t t h e G e n e r a l
39/ E/CN.. 4 / 6 4 3 .

ko/ E/CN.4/528/Add.l.
4i/ E/CN.4/650.
42/ E/CN.4/654 and Add.1-9 and E/CN.4/655 and Add.1-4.
43/ E/CN.4/530/Add.l.
44/ E/CN.4/651.
45/ ESC (XIV), s u p p l . 4, p a r a s . 92-289 and annexes I , I I and I I I .
46/ E/CN.4/L.195.
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Assembly, t h r o u g h t h e Economic and S o c i a l C o u n c i l , t o r e v i s e i t s d e c i s i o n i n

r e s o l u t i o n 5^3 ( V l ) t o p r e p a r e t w o separate covenants. T h i s p r o p o s a l was n o t
adopted.
38. D u r i n g t h i s s e s s i o n t h e Commission was n o t a b l e t o complete the drafting
o f t h e covenants and, i n p a r t i c u l a r , t o c o n s i d e r q u e s t i o n s o f i m p l e m e n t a t i o n ,
p r o v i s i o n s on r e s e r v a t i o n s and a f e d e r a l S t a t e c l a u s e . I na draft resolution
i t r e q u e s t e d t h e a u t h o r i z a t i o n o f t h e C o u n c i l t o complete i t s work on t h e
covenants a t i t s n e x t s e s s i o n i n o r d e r t h a t t h e y m i g h t be s u b m i t t e d
s i m u l t a n e o u s l y i n 1953.
39. I n r e s o l u t i o n hko ( X I V ) t h e Economic and S o c i a l C o u n c i l i n s t r u c t e d t h e
Commission t o complete i t s work on t h e covenants a t i t s n e x t s e s s i o n .
ho. The Commission devoted t h e m a j o r p a r t o f i t s n i n t h s e s s i o n (7 A p r i l -
hi/
30 May 195) t o t h e c o n s i d e r a t i o n o f t h e d r a f t c o v e n a n t s . ' I t adopted seven
a d d i t i o n a l a r t i c l e s d e a l i n g w i t h c i v i l and p o l i t i c a l r i g h t s . I t revised the
p r o v i s i o n s r e l a t i n g t o t h e e s t a b l i s h m e n t , c o m p o s i t i o n and j u r i s d i c t i o n o f t h e
human r i g h t s committee i n connexion w i t h t h e covenant on c i v i l and p o l i t i c a l
r i g h t s , b u t i t d i d n o t d e c i d e whether such p r o v i s i o n s were t o be a p p l i e d t o t h e
covenant on economic, s o c i a l and c u l t u r a l r i g h t s . I t d i d n o t have t i m e t o
re-examine t h e p r o v i s i o n s r e l a t i n g t o t h e system o f p e r i o d i c r e p o r t s i n connexion
w i t h t h e covenant on economic, s o c i a l and c u l t u r a l r i g h t s o r w i t h t h e covenant on
c i v i l and p o l i t i c a l r i g h t s . Nor d i d i t r e c o n s i d e r t h e f i n a l c l a u s e s , i n c l u d i n g
f e d e r a l and r e s e r v a t i o n s c l a u s e s . A p r o p o s a l ' w h i c h would request t h e Council
t o ask t h e General Assembly t o r e c o n s i d e r i t s d e c i s i o n t h a t two covenants,
i n s t e a d o f one, s h o u l d be d r a f t e d was r e j e c t e d .
hi. N o t i n g t h e p r o g r e s s made i n t h e d r a f t i n g o f t h e covenants, t h e Economic and
S o c i a l C o u n c i l , i n r e s o l u t i o n 501 ( X V l ) , r e q u e s t e d t h e Commission t o complete
i t s work a t i t s t e n t h s e s s i o n i n 195^b t r a n s m i t t e d t h e r e p o r t o f t h e Commission
t o t h e General Assembly and i n v i t e d Member S t a t e s , s p e c i a l i z e d agencies and
non-governmental o r g a n i z a t i o n s t o submit o b s e r v a t i o n s on t h e d r a f t covenants.

hjj ESC ( X V I ) , s u p p l . 8, p a r a s . 24-214 and annexes I and I I .

UQ/ E/CN.U/L.272.
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1+2. The General Assembly a t i t s e i g h t h s e s s i o n (15 September - 9 December 1953)

d i s c u s s e d two q u e s t i o n s r e l a t i n g t o t h e d r a f t covenants: the question o f a
kg/
f e d e r a l c l a u s e and t h e q u e s t i o n o f t h e r i g h t o f p e t i t i o n . ' I t d i d n o t make any
p o l i c y d e c i s i o n on e i t h e r q u e s t i o n , b u t i n r e s o l u t i o n 737 ( V I I l ) i t t r a n s m i t t e d
50/ 51/
d r a f t r e s o l u t i o n s on a f e d e r a l c l a u s e ' and on t h e r i g h t o f p e t i t i o n ' t o t h e
Commission. The Assembly r e s o l u t i o n was f o r w a r d e d t o t h e Commission by t h e
Council i n r e s o l u t i o n 5 (XVI).
1+3 I t was d u r i n g i t s t e n t h s e s s i o n (23 F e b r u a r y - 16 A p r i l 195*0 t h a t t h e
52/
Commission concluded i t s work on t h e d r a f t c o v e n a n t s . ' Before i t were
53/ 5k/
o b s e r v a t i o n s o f g o v e r n m e n t s , o f s p e c i a l i z e d a g e n c i e s ' and o f non-governmental
55/
o r g a n i z a t i o n s on t h e d r a f t covenants. A l s o b e f o r e i t were t h e S e c r e t a r y -
56/
General's memoranda on c i v i l and p o l i t i c a l r i g h t s , on economic, s o c i a l and
Civ / r Q /
c u l t u r a l r i g h t s , ' o n measures o f i m p l e m e n t a t i o n , ' o n t h e q u e s t i o n o f
59/ 60/
r e s e r v a t i o n s and on f i n a l c l a u s e s . '
kk. A t i t s t e n t h s e s s i o n t h e Commission proceeded t o redraft the articles
r e l a t i n g t o t h e system o f p e r i o d i c r e p o r t s f o r t h e i m p l e m e n t a t i o n o f t h e covenant
on economic, s o c i a l and c u l t u r a l r i g h t s . I t adopted an a r t i c l e c o n c e r n i n g
r e p o r t s on c i v i l and p o l i t i c a l r i g h t s f o r t h e i m p l e m e n t a t i o n o f t h e covenant on
c i v i l and p o l i t i c a l r i g h t s , b u t i t d e c i d e d n o t t o a p p l y t h e human r i g h t s
committee procedure t o t h e covenant on economic, s o c i a l and c u l t u r a l rights.

1+9/ GA ( V I I I ) 3RD Com. 5L8TH-521ST and 523RD-52L+th m t g s . j p l e n . 46oth mtg.

50/ A/C.3/L.366, 37^ and 388.
51/ A/C.3/L.372/R e v . l ,
52/ ESC ( X V I I I ) , s u p p l . 7, p a r a s . 24-321 and annexes I , I I and I I I .
53/ E/CN.k/Ggk and Add.1-7-
5V E/CN.I+/692 and Add. 1-2.
55/ E/CN.1+/702 and Add. 1-6.
5/ E/CN.1+/671+.
57/ E/CN.V673-
58/ E/CW.I+/675.
59/ E/CN.I+/677.
60/ E/CN.I+/678 and Corr. 1 .
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I t discussed, h u t d i d n o t a d o p t , p r o v i s i o n s on t h e r i g h t o f p e t i t i o n o f
i n d i v i d u a l s , groups o r non-governmental o r g a n i z a t i o n s i n r e s p e c t o f e i t h e r civil
and p o l i t i c a l r i g h t s o r economic, s o c i a l and c u l t u r a l r i g h t s .
45. The Commission adopted a f e d e r a l c l a u s e s t i p u l a t i n g t h a t t h e p r o v i s i o n s o f
each covenant " s h a l l e x t e n d t o a l l p a r t s o f f e d e r a l S t a t e s w i t h o u t l i m i t a t i o n s o r
exceptions". P r e v i o u s l y i t had embodied i n each covenant a t e r r i t o r i a l
a p p l i c a t i o n c l a u s e , adopted b y t h e General Assembly i n r e s o l u t i o n h22 (v), w h i c h
s t a t e d t h a t t h e p r o v i s i o n s o f t h e covenant " s h a l l e x t e n d t o and be a p p l i c a b l e
e q u a l l y t o a s i g n a t o r y m e t r o p o l i t a n S t a t e and t o a l l t h e t e r r i t o r i e s , be t h e y
non-self-governing, t r u s t o r c o l o n i a l t e r r i t o r i e s , which are being administered
o r governed b y such m e t r o p o l i t a n S t a t e " . The Commission was unable t o r e a c h an
agreement on t h e f o r m u l a t i o n o f a c l a u s e on r e s e r v a t i o n s , and i t d e c i d e d t o r e q u e s t
t h e C o u n c i l t o t r a n s m i t a number o f p r o p o s a l s ^ t o t h e G e n e r a l Assembly.

46. The Commission a l s o d i s c u s s e d p r o p o s a l s on t h e r i g h t t o own p r o p e r t y b u t i t

adjourned sine d i e consideration o f the question.
h"J. The d r a f t covenants, as t h u s p r e p a r e d b y t h e Commission, c o n t a i n t h e
following parts :

D r a f t covenant on c i v i l and p o l i t i c a l rights

Preamble
Part I Article 1 The r i g h t o f s e l f - d e t e r m i n a t i o n
Part I I Articles 2 - 5 General p r o v i s i o n s
Part I I I A r t i c l e s 6 -.26 C i v i l and p o l i t i c a l r i g h t s
Part IV A r t i c l e s 27- i+8 Measures o f i m p l e m e n t a t i o n (human
r i g h t s committee)
Part V A r t i c l e s k$- 50 Measures o f i m p l e m e n t a t i o n ( r e p o r t s )
Part VI A r t i c l e s 51- 5^ F i n a l clauses

D r a f t covenent on economic, s o c i a l and c u l t u r a l rights

Preamble
Part I Article 1 The r i g h t o f s e l f - d e t e r m i n a t i o n
Part I I Articles 2 5 General p r o v i s i o n s
Part I I I Articles 6 16 Economic s o c i a l and c u l t u r a l r i g h t s
Part IV Articles 17 25 Measures o f i m p l e m e n t a t i o n (system o f
periodic reports)
Part V Articles 26 29 F i n a l clauses.

61/ E/CN.h/L.3^5 and A d d . l , 3^9, 351. 352, 353 and 35^.

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48. I n s u b m i t t i n g i t s r e p o r t t o t h e C o u n c i l t h e Commission i n c l u d e d a s u g g e s t i o n
t h a t t h e General Assembly s h o u l d g i v e t h e d r a f t covenants, n o t a s i n g l e r e a d i n g ,
b u t two separate r e a d i n g s a t t w o c o n s e c u t i v e sessions.
49. By r e s o l u t i o n 5^5 ( X V I I I ) t h e C o u n c i l t r a n s m i t t e d t h e d r a f t covenants t o
t h e General Assembly and drew i t s a t t e n t i o n t o t h e s u g g e s t i o n t h a t t h e y s h o u l d
be g i v e n t w o r e a d i n g s .
62/
50. The General Assembly c o n s i d e r e d t h e d r a f t covenants a t i t s n i n t h s e s s i o n . '
A f i r s t r e a d i n g o f t h e d r a f t covenants, b e g i n n i n g w i t h a g e n e r a l d i s c u s s i o n , t o o k
p l a c e i n t h e T h i r d Committee. Upon t h e recommendation o f t h e Committee t h e
General Assembly adopted r e s o l u t i o n 833 ( I X ) on t h e d r a f t covenants. I n this
r e s o l u t i o n , a f t e r e x p r e s s i n g i t s g r a t i t u d e t o t h e Commission f o r t h e work i t had
accomplished,the Assembly:
1. Invites :
(a) Governments o f S t a t e s Members and non-members o f t h e U n i t e d
N a t i o n s t o communicate t o t h e S e c r e t a r y - G e n e r a l , w i t h i n s i x months a f t e r
t h e end o f t h e p r e s e n t s e s s i o n o f t h e General Assembly, any amendments o r
a d d i t i o n s t o t h e d r a f t i n t e r n a t i o n a l covenants on human r i g h t s o r a n y
observations thereon;
(D) The s p e c i a l i z e d agencies t o communicate t o t h e S e c r e t a r y - G e n e r a l ,
w i t h i n s i x months a f t e r t h e end o f t h e p r e s e n t s e s s i o n , any o b s e r v a t i o n s
t h e y may w i s h t o make w i t h r e g a r d t o t h e d r a f t i n t e r n a t i o n a l covenants;
(c) The non-governmental o r g a n i z a t i o n s concerned w i t h t h e p r o m o t i o n
o f human r i g h t s , i n c l u d i n g t h o s e i n t h e n o n - s e l f - g o v e r n i n g and t r u s t
t e r r i t o r i e s , t o stimulate public interest i n the draft international
covenants on human r i g h t s b y a l l p o s s i b l e means i n t h e i r r e s p e c t i v e c o u n t r i e s
2. Requests t h e S e c r e t a r y - G e n e r a l :
(a) To p r e p a r e and d i s t r i b u t e t o Governments, as e a r l y as p o s s i b l e , a
c o n c i s e a n n o t a t i o n o f t h e t e x t o f t h e d r a f t i n t e r n a t i o n a l covenants, taking
account o f t h e o b s e r v a t i o n s made b e f o r e and d u r i n g t h e n i n t h s e s s i o n o f t h e
General Assembly, i n c l u d i n g those made i n t h e Economic and S o c i a l C o u n c i l
and i n t h e Commission on Human R i g h t s ;

62/ GA ( I X ) , 3rd Com., 557th-586th mtgs.; p l e n . 504th mtg.

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(b) To d i s t r i b u t e t o Governments, as soon as t h e y a r e r e c e i v e d , t h e

communications w h i c h may be made b y Governments and b y t h e s p e c i a l i z e d
agencies d u r i n g t h e n e x t s i x months ;
(c) To p r e p a r e as a w o r k i n g paper a c o m p i l a t i o n o f a l l t h e amendments
and proposed new a r t i c l e s w h i c h may be s u b m i t t e d b y Governments d u r i n g that
period;
. Requests t h e S e c r e t a r y - G e n e r a l t o g i v e t h e d r a f t international
covenants on human r i g h t s t h e w i d e s t p o s s i b l e p u b l i c i t y t h r o u g h a l l t h e
media o f i n f o r m a t i o n a v a i l a b l e t o him, and w i t h i n t h e l i m i t s o f h i s budget;
k. Recommends t h a t , d u r i n g t h e t e n t h s e s s i o n o f t h e General Assembly,
t h e T h i r d Committee g i v e p r i o r i t y and devote i t s e l f m a i n l y t o t h e
d i s c u s s i o n , a r t i c l e b y a r t i c l e , i n an agreed o r d e r , o f t h e d r a f t
international covenants on human r i g h t s w i t h a v i e w t o t h e i r a d o p t i o n a t
the e a r l i e s t p o s s i b l e d a t e . The d i s c u s s i o n s h a l l a l s o cover any new
a r t i c l e s w h i c h may be proposed.
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CHAPTER I I

GENERAL PROBLEMS RELATING TO THE DRAFT COVENANTS

Table o f Contents

Paragraphs

One o r two covenants k-12

B r i e f clauses o r elaborate p r o v i s i o n s 13-23
Measures o f i m p l e m e n t a t i o n 2^-39

1. W h i l e t h e p r e s e n t document i s p r i m a r i l y an a n n o t a t i o n o f t h e t e x t o f each
a r t i c l e o f b o t h d r a f t covenants, t h e r e a r e a number o f g e n e r a l problems relating
t o t h e covenants as a whole, w h i c h may be n o t e d a t t h e o u t s e t .
2. The f i r s t i s whether t h e r e s h o u l d be one o r t w o covenants. A second i s
whether s u b s t a n t i v e a r t i c l e s s h o u l d be d r a f t e d i n g e n e r a l terms o r i n e l a b o r a t e
clauses. A t h i r d i s whether t h e covenants s h o u l d c o n t a i n any i n t e r n a t i o n a l
measures o r i m p l e m e n t a t i o n and, i f so, what t y p e s o r systems o f i m p l e m e n t a t i o n .
These problems a r e b r i e f l y s e t f o r t h i n t h i s c h a p t e r .
3. There a r e t h r e e o t h e r g e n e r a l problems: Should t h e p r o v i s i o n s o f t h e
covenants e x t e n d t o a l l p a r t s o f f e d e r a l S t a t e s w i t h o u t any l i m i t a t i o n s o r
exceptions? Should t h e y be e q u a l l y a p p l i c a b l e t o m e t r o p o l i t a n powers and
t o n o n - s e l f - g o v e r n i n g and t r u s t t e r r i t o r i e s ? Should t h e r e be one o r more
clauses r e l a t i n g t o the a d m i s s i b i l i t y o r i n a d m i s s i b i l i t y o f r e s e r v a t i o n s and t h e
e f f e c t t o be a t t r i b u t e d t o them? These problems, though r e l a t i n g t o t h e
covenants as a whole, a r e d i s c u s s e d i n t h e c h a p t e r on t h e f i n a l c l a u s e s o f t h e
d r a f t covenants i n r e l a t i o n t o a c t u a l t e x t s adopted o r proposed.
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One o r "two covenants

4. A t i t s s i x t h s e s s i o n i n 1950, t h e Commission on Human R i g h t s d e c i d e d t h a t

t h e d r a f t covenant c o v e r i n g c e r t a i n e s s e n t i a l c i v i l r i g h t s , w h i c h i t had prepared,
s h o u l d be t h e f i r s t o f a s e r i e s o f covenants and t h a t i t would c o n s i d e r
a d d i t i o n a l covenants d e a l i n g w i t h economic, s o c i a l , c u l t u r a l , p o l i t i c a l and
o t h e r c a t e g o r i e s o f human r i g h t s .
5. I n r e s o l u t i o n I ( X l ) , t h e Economic and S o c i a l C o u n c i l r e q u e s t e d t h e
General Assembly, i n t e r a l i a , t o make a p o l i c y d e c i s i o n r e g a r d i n g " t h e
d e s i r a b i l i t y o f i n c l u d i n g a r t i c l e s on economic, s o c i a l and c u l t u r a l r i g h t s " i n
the covenant. The General Assembly, i n r e s o l u t i o n 421 E (v), d e c i d e d " t o
i n c l u d e i n t h e d r a f t covenant a c l e a r e x p r e s s i o n o f economic, s o c i a l and
c u l t u r a l r i g h t s i n a manner w h i c h r e l a t e s them t o t h e c i v i l and p o l i t i c a l freedoms
proclaimed by t h e d r a f t covenant".
6. A t i t s seventh s e s s i o n i n 1951 "the Commission d r a f t e d a r t i c l e ^ on economic,
s o c i a l and c u l t u r a l r i g h t s . The C o u n c i l , i n r e s o l u t i o n 384 ( X I I l ) , i n v i t e d t h e
General Assembly " t o r e c o n s i d e r i t s d e c i s i o n ... t o i n c l u d e i n one covenant
a r t i c l e s on economic, s o c i a l and c u l t u r a l r i g h t s , t o g e t h e r w i t h a r t i c l e s on c i v i l
and p o l i t i c a l r i g h t s " . The General Assembly, i n r e s o l u t i o n 5^3 ( V l ) , e v e n t u a l l y
d e c i d e d t h a t t h e r e s h o u l d be two covenants on human r i g h t s , "one t o c o n t a i n c i v i l
and p o l i t i c a l r i g h t s and t h e o t h e r t o c o n t a i n e c o n o m i c , s o c i a l and c u l t u r a l rights",
t h e two covenants t o c o n t a i n "as many s i m i l a r p r o v i s i o n s as p o s s i b l e " and t o be
approved and opened f o r s i g n a t u r e s i m u l t a n e o u s l y , i n o r d e r t o emphasize t h e u n i t y
o f purpose
7. I t was c l e a r t h a t t h e o p i n i o n o f U n i t e d N a t i o n s Members was d i v i d e d as t o
whether t h e r e s h o u l d be one o r two covenants. I t s h o u l d be n o t e d , however, t h a t
those i n f a v o u r o f h a v i n g two covenants as w e l l as those i n f a v o u r o f a s i n g l e

l/ The q u e s t i o n o f whether one o r two covenants s h o u l d be d r a f t e d was d i s c u s s e d

on many o c c a s i o n s . Reference may be made e s p e c i a l l y t o t h e f o l l o w i n g
documents: CHR ( V l ) , E/CN.4/SR.l84 - 187; CHR ( V I l ) , E/CN.4/SR.203-208; .
ESC ( X l ) , E/AC7/SR.I39-I55 and 157; ESC ( X I I l ) , 522nd-525th mtgs. ;
GA ( V ) , 3rd Com., 297th-299th and 312th-313th mtgs.; a . i . 63, annexes,
A/1559; GA ( V I ) , 3rd Com., 36oth-372nd and 387th-396th mtgs., and a . i . 29,
annexes, A/2112 and A/C3/5^5
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covenant were g e n e r a l l y agreed t h a t "the enjoyment o f c i v i l and p o l i t i c a l

freedoms and o f economic, s o c i a l and c u l t u r a l r i g h t s a r e i n t e r c o n n e c t e d and
interdependent" and t h a t "when d e p r i v e d o f economic, s o c i a l and c u l t u r a l r i g h t s ,
man does n o t r e p r e s e n t t h e human p e r s o n whom t h e U n i v e r s a l D e c l a r a t i o n regards
2/
as t h e i d e a l o f t h e f r e e man". The d i v e r g e n c e o f opinion-appeared t o a r i s e
f r o m a d i f f e r e n c e o f approach r a t h e r t h a n o f purpose.
8. Those who were i n f a v o u r o f d r a f t i n g a s i n g l e covenant m a i n t a i n e d that
human r i g h t s c o u l d n o t be c l e a r l y d i v i d e d i n t o d i f f e r e n t c a t e g o r i e s , n o r c o u l d
t h e y be so c l a s s i f i e d as t o r e p r e s e n t a h i e r a r c h y o f v a l u e s . A l l rights should
be promoted and p r o t e c t e d a t t h e same t i m e . Without economic, s o c i a l and
c u l t u r a l r i g h t s , c i v i l and p o l i t i c a l r i g h t s m i g h t be p u r e l y n o m i n a l i n c h a r a c t e r ;
w i t h o u t c i v i l and p o l i t i c a l r i g h t s , economic, s o c i a l and c u l t u r a l r i g h t s c o u l d n o t
he l o n g ensured. There should t h e r e f o r e , be a s i n g l e covenant w h i c h w o u l d
embrace a l l human r i g h t s and b y w h i c h S t a t e s w o u l d solemnly u n d e r t a k e t o promote
and guarantee them a l l .
9- Those i n f a v o u r o f d r a f t i n g two separate covenants argued t h a t c i v i l and
p o l i t i c a l r i g h t s were e n f o r c e a b l e , o r j u s t i c i a b l e , o r o f an " a b s o l u t e " character,
w h i l e economic, s o c i a l and c u l t u r a l r i g h t s were n o t o r m i g h t n o t be; that the
former were i m m e d i a t e l y a p p l i c a b l e , w h i l e t h e l a t t e r were t o be p r o g r e s s i v e l y
implemented; and t h a t , g e n e r a l l y speaking, t h e f o r m e r were r i g h t s o f t h e
i n d i v i d u a l " a g a i n s t " t h e S t a t e , i . e . , a g a i n s t u n l a w f u l and u n j u s t a c t i o n o f t h e
S t a t e , w h i l e t h e l a t t e r were r i g h t s w h i c h t h e S t a t e would have t o t a k e p o s i t i v e
a c t i o n t o promote. Since t h e n a t u r e o f c i v i l and p o l i t i c a l r i g h t s and t h a t o f
economic, s o c i a l and c u l t u r a l r i g h t s , and t h e o b l i g a t i o n s o f t h e S t a t e i n
r e s p e c t t h e r e o f , were d i f f e r e n t , i t was d e s i r a b l e t h a t two separate instruments
should be prepared.
10. The q u e s t i o n o f d r a f t i n g one o r two covenants was i n t i m a t e l y r e l a t e d t o t h e
question o f implementation. I f no measures o f i m p l e m e n t a t i o n were t o be

2/ These two clauses were used b o t h i n t h e preamble o f General Assembly

r e s o l u t i o n k-21 E (v), i n w h i c h i t was decided t h a t t h e r e should be a
s i n g l e covenant, and i n t h e preamble o f r e s o l u t i o n 5^-3 ( V l ) , i n w h i c h i t
was decided t h a t t h e r e s h o u l d be two separate covenants.
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f o r m u l a t e d , i t would make l i t t l e d i f f e r e n c e whether one o r two covenants were t o

he d r a f t e d . G e n e r a l l y s p e a k i n g , c i v i l and p o l i t i c a l r i g h t s were t h o u g h t t o he
" l e g a l " r i g h t s and c o u l d h e s t he implemented b y t h e c r e a t i o n o f a good o f f i c e s
committee, w h i l e economic, s o c i a l and c u l t u r a l r i g h t s were t h o u g h t t o be
"programme" r i g h t s and c o u l d b e s t be implemented b y t h e e s t a b l i s h m e n t o f a system
of periodic reports. Since t h e r i g h t s c o u l d be d i v i d e d i n t o two b r o a d
c a t e g o r i e s , w h i c h s h o u l d be s u b j e c t t o d i f f e r e n t p r o c e d u r e s o f i m p l e m e n t a t i o n , i t
w o u l d be b o t h l o g i c a l and c o n v e n i e n t t o f o r m u l a t e t w o s e p a r a t e covenants.
11. However, i t was argued t h a t , n o t i n a l l c o u n t r i e s and t e r r i t o r i e s , were a l l
c i v i l and p o l i t i c a l r i g h t s " l e g a l " r i g h t s , n o r a l l economic, s o c i a l and c u l t u r a l
r i g h t s "programme" r i g h t s . A c i v i l o r p o l i t i c a l r i g h t m i g h t w e l l be a
"programme" r i g h t under one regime, an economic, social or cultural right a
" l e g a l " r i g h t under a n o t h e r . A covenant c o u l d be d r a f t e d i n such a manner as
would enable S t a t e s , upon r a t i f i c a t i o n o r a c c e s s i o n , t o announce, each i n so f a r
as i t was concerned, w h i c h c i v i l , p o l i t i c a l , economic, s o c i a l and c u l t u r a l
r i g h t s were " l e g a l " r i g h t s , and w h i c h "programme" r i g h t s , and b y w h i c h procedures
the r i g h t s w o u l d be implemented.
12. Besides t h e s e main l i n e s o f argument, a t t e n t i o n may be drawn t o two o t h e r
views. One v i e w was t h a t t h e r e s h o u l d be o n l y one covenant on c i v i l and
p o l i t i c a l r i g h t s , and t h a t economic, s o c i a l and c u l t u r a l r i g h t s , w h i c h c o u l d o n l y
be promoted p r o g r e s s i v e l y , s h o u l d n o t be embodied i n a l e g a l i n s t r u m e n t a t a l l .
A n o t h e r v i e w was t h a t t h e r i g h t o r t h e p r i n c i p l e o f s e l f - d e t e r m i n a t i o n , b e i n g a
v e r y b r o a d r i g h t o r a v e r y g e n e r a l p r i n c i p l e , m i g h t be t h e s u b j e c t o f a s e p a r a t e
covenant o r a s p e c i a l d e c l a r a t i o n .

3/
B r i e f clauses o r elaborate p r o v i s i o n s
13. There were two schools o f t h o u g h t r e g a r d i n g t h e manner i n w h i c h a r t i c l e s on
s u b s t a n t i v e r i g h t s s h o u l d be d r a f t e d . One s c h o o l h e l d t h a t each article

T h i s problem was d i s c u s s e d i n c o n n e x i o n w i t h many s u b s t a n t i v e a r t i c l e s .

Reference may be made e s p e c i a l l y t o t h e f o l l o w i n g documents: CHR (v),
E/CN.VSR.90-132; E/CN.V528 and A d d . l , 529 and 650j GA (v), 3rd Com.,
288th-291st and 305th-307th m t g s . j and a . i . 63, annexes, A/1559;
GA ( V I ) , 3rd Com., 396th mtg.; and a . i . 29, annexes, A/2112.
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s h o u l d a b r i e f c l a u s e o f a g e n e r a l c h a r a c t e r ; a n o t h e r s c h o o l was o f t h e
o p i n i o n t h a t each r i g h t , i t s scope and substance, i t s l i m i t a t i o n s , as w e l l as t h e
o b l i g a t i o n s o f t h e S t a t e i n r e s p e c t t h e r e o f , s h o u l d be d r a f t e d w i t h t h e g r e a t e s t
possible precision.
ik. The f i r s t s c h o o l m a i n t a i n e d t h a t , i n g e n e r a l i n s t r u m e n t s o f such a
comprehensive c h a r a c t e r as t h e covenants, i t was i m p o s s i b l e t o s e t f o r t h t h e
scope and substance o f each r i g h t i n g r e a t d e t a i l . W h i l e t h e r e were concepts o f
r i g h t s w h i c h m i g h t be g e n e r a l l y a c c e p t a b l e , t h e r e were a l s o concepts w h i c h v a r i e d
a g r e a t d e a l f r o m one l e g a l system t o a n o t h e r and m i g h t n o t be u n i v e r s a l l y
applicable. I t w o u l d be b e t t e r t o p r o v i d e t h a t "no one s h a l l be held, i n s l a v e r y
o r i n s e r v i t u d e " t h a n t o d e f i n e e x a c t l y what s l a v e r y o r s e r v i t u d e was. I t would
be b e t t e r t o p r o v i d e t h a t "the S t a t e s p a r t i e s t o t h e covenant r e c o g n i z e t h e r i g h t
o f everyone t o s o c i a l s e c u r i t y " t h a n t o a t t e m p t t o d e f i n e t h e p r e c i s e c o n t e n t o f
that right. The covenants c o u l d o n l y c o n t a i n g e n e r a l p r o v i s i o n s , and t h e p r e c i s e
scope and substance o f each r i g h t s h o u l d be l e f t t o n a t i o n a l l e g i s l a t i o n .
15. The l i m i t a t i o n s t o t h e e x e r c i s e o f each r i g h t were even more d i f f i c u l t t o
s p e c i f y . ' Take " t h e r i g h t t o l i b e r t y and s e c u r i t y o f p e r s o n " as an example.
D u r i n g t h e d i s c u s s i o n on t h i s r i g h t some t h i r t y l i m i t a t i o n s ^ w e r e suggested. I t
was b e t t e r t o p r o v i d e t h a t "no one s h a l l be s u b j e c t e d t o a r b i t r a r y a r r e s t o r
d e t e n t i o n , " t h e word " a r b i t r a r y " b e i n g u n d e r s t o o d t o mean b o t h " i l l e g a l " and
" u n j u s t " , t h a n t o i n c l u d e a c a t a l o g u e o f some t h i r t y l i m i t a t i o n s . With respect
t o freedom o f i n f o r m a t i o n , some t h i r t y l i m i t a t i o n s were a l s o suggested.^ I t was
b e t t e r t o f o r m u l a t e a s i m p l e l i m i t a t i o n s c l a u s e t h a n t o prepare an i n v e n t o r y o f
thirty limitations.

hj A t t e n t i o n i s drawn t o t h e f a c t t h a t i n t h e d r a f t covenant on economic, s o c i a l

and c u l t u r a l r i g h t s s u b s t a n t i v e a r t i c l e s do n o t themselves c o n t a i n
l i m i t a t i o n s clauses b u t a r e s u b j e c t t o a general l i m i t a t i o n s clause i n
a r t i c l e h, w h i l e i n t h e d r a f t covenant on c i v i l and p o l i t i c a l r i g h t s a
number o f s u b s t a n t i v e a r t i c l e s c o n t a i n s p e c i a l l i m i t a t i o n s c l a u s e s , a p a r t
f r c m t h e p r o v i s i o n s on d e r o g a t i o n s i n a r t i c l e h.
5/ E/CN.U-/95, Annex B, p a r t I I .
6/ ESC ( I X ) , s u p p l . 10, Annex I , a r t . 17.
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16. As t o t h e o b l i g a t i o n s o f S t a t e s , a c c o r d i n g t o t h i s s c h o o l o f t h o u g h t , t h e
covenants c o u l d p r o v i d e i n a g e n e r a l manner t h a t t h e S t a t e s p a r t i e s s h o u l d
guarantee c i v i l and p o l i t i c a l r i g h t s i n accordance w i t h law, and s h o u l d r e c o g n i z e
and p r o g r e s s i v e l y promote economic, s o c i a l and c u l t u r a l r i g h t s . To enumerate t h e
s p e c i f i c acts t h a t States might perform i n respect o f c i v i l or p o l i t i c a l r i g h t s ,
or t o determine i n advance t h e p a r t i c u l a r measures t h e y s h o u l d t a k e i n r e s p e c t o f
economic, s o c i a l o r c u l t u r a l r i g h t s , would be g o i n g f a r beyond t h e scope o f t h e
covenants. Furthermore no d i r e c t o r y o f s p e c i f i c o b l i g a t i o n s c o u l d be e x h a u s t i v e .
IT. F i n a l l y , t h e covenants were n o t t h e o n l y o r t h e f i n a l i n s t r u m e n t s on human
rights. The r i g h t s s e t f o r t h i n t h e covenants c o u l d be e l a b o r a t e d - i n d i v i d u a l l y
or s e v e r a l l y - i n a s e r i e s o f i n t e r n a t i o n a l c o n v e n t i o n s , s h o u l d t h e community o f
n a t i o n s so d e s i r e . For i n s t a n c e , a c o n v e n t i o n on s l a v e r y and s e r v i t u d e , o r a
c o n v e n t i o n on freedom o f i n f o r m a t i o n , o r a c o n v e n t i o n on s o c i a l s e c u r i t y o r on
p o l i t i c a l r i g h t s c o u l d be drawn up w i t h more p r e c i s i o n and i n g r e a t e r d e t a i l t h a n
i n d i v i d u a l a r t i c l e s on such s u b j e c t s i n t h e covenants. As a m a t t e r o f f a c t ,
c o n v e n t i o n s on s p e c i f i c r i g h t s , have been and a r e b e i n g drawn up under t h e auspices
of t h e U n i t e d N a t i o n s and t h e s p e c i a l i z e d agencies.
18. The o t h e r s c h o o l h e l d t h e view t h a t t h e covenants on human r i g h t s s h o u l d not
be a second e d i t i o n o f t h e U n i v e r s a l D e c l a r a t i o n o f Human E i g h t s , where g e n e r a l
p r i n c i p l e s r e g a r d i n g human r i g h t s and fundamental freedoms had a l r e a d y been s e t
forth. I t w o u l d serve l i t t l e u s e f u l purpose were a r t i c l e s o f t h e D e c l a r a t i o n
t o be reproduced v e r b a t i m o r i n s u b s t a n t i a l l y t h e same f o r m i n t h e covenants.
19. T h i s s c h o o l m a i n t a i n e d t h a t , i n t h e f i r s t p l a c e , t h e scope and substance of
each l i g h t s h o u l d be p r e c i s e l y d e f i n e d . I t was not s u f f i c i e n t t o declare t h a t
"everyone s h a l l be e n t i t l e d t o a f a i r and p u b l i c h e a r i n g " ; i t was f a r more
i m p o r t a n t t o s p e c i f y minimum guarantees under w h i c h t h a t r i g h t c o u l d be fully
protected. I t was n o t s u f f i c i e n t t o d e c l a r e t h a t everyone s h a l l have t h e " r i g h t
to education"; i t was f a r more i m p o r t a n t t o s e t f o r t h t h e l e g a l standards i n
r e s p e c t o f each l e v e l o f e d u c a t i o n . To d e c l a r e t h e e x i s t e n c e o f a r i g h t , w i t h o u t
i n d i c a t i n g i t s c o n t e n t , would l e a v e much t o be d e s i r e d .
20. The e x e r c i s e o f many r i g h t s , i t was g r a n t e d , was subject t o l i m i t a t i o n s . If
l i m i t a t i o n s were n o t c l e a r l y d e f i n e d , b u t couched i n g e n e r a l terms, t h e r e was
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l i t t l e guarantee t h a t r i g h t s w o u l d n o t he v i o l a t e d . I f freedom o f w o r s h i p and

freedom o f i n f o r m a t i o n m i g h t he a b r i d g e d on t h e b a s i s o f such vague expressions
as " p u b l i c o r d e r " and " n a t i o n a l s e c u r i t y " , such freedoms were i n g r e a t j e o p a r d y
indeed. I n t h e name o f " p u b l i c o r d e r " many a s a i n t l y c h a r a c t e r had been c r u c i f i e d ,
i n t h e name o f " n a t i o n a l s e c u r i t y " many a p a t r i o t g u i l l o t i n e d . B e t t e r no covenant
t h a n t h a t i t s h o u l d be an i n s t r u m e n t t o suppress human l i b e r t y ^
21. The o b l i g a t i o n s o f t h e S t a t e s h o u l d a l s o be s t a t e d i n u n e q u i v o c a l terms.
There were areas o f human l i f e w h i c h t h e S t a t e m i g h t n o t invade and areas i n w h i c h
i t m i g h t t a k e p o s i t i v e a c t i o n - b o t h i n o r d e r f u l l y t o ensure human r i g h t s . I t
should be made c l e a r , f o r i n s t a n c e , t h a t freedom o f "conscience" and freedom o f
" t h o u g h t " , as d i s t i n g u i s h e d f r o m freedom o f " w o r s h i p " and freedom o f " i n f o r m a t i o n " ,
were a b s o l u t e freedoms w h i c h p e r m i t t e d o f no S t a t e i n t e r f e r e n c e . I t was n o t
enough t o d e c l a r e t h a t t h e S t a t e s p a r t i e s s h o u l d " r e c o g n i z e " , f o r i n s t a n c e , t h e
r i g h t o f everyone t o adequate f o o d , c l o t h i n g and h o u s i n g ; their obligations,
beyond t h e mere r e c o g n i t i o n o f t h e r i g h t , s h o u l d be c l e a r l y determined.
22. The U n i v e r s a l D e c l a r a t i o n o f Human R i g h t s h a v i n g been p r o c l a i m e d , what was
t h e purpose o f d r a f t i n g covenants on human r i g h t s i f n o t t o d e f i n e t h e scope and
substance o f each r i g h t , i t s l i m i t a t i o n s , and t h e o b l i g a t i o n s o f t h e S t a t e i n
r e s p e c t t h e r e o f , as p r e c i s e l y as p o s s i b l e , and t h e r e b y t o s e t up i n t e r n a t i o n a l
l e g a l standards and r u l e s whereby a S t a t e would abide?
23- I t was c l e a r t h a t each o f t h e two schools had e x e r t e d i t s i n f l u e n c e on t h e
d r a f t i n g of the substantive a r t i c l e s . Some a r t i c l e s were f o r m u l a t e d i n a v e r y
g e n e r a l manner, w h i l e o t h e r s were drawn up i n e l a b o r a t e terms. I t was r e a l i z e d ,
of course, t h a t t h e l o g i c o f n e i t h e r s c h o o l c o u l d be c a r r i e d t o i t s extreme : t h e
covenants s h o u l d n o t be a second e d i t i o n o f t h e U n i v e r s a l D e c l a r a t i o n o f Human
R i g h t s , n o r c o u l d t h e y be a compendium o f a l l c i v i l and c r i m i n a l codes and a l l
s o c i a l and e d u c a t i o n a l l a w s .
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Measures o f i m p l e m e n t a t i o n '

24. There was g e n e r a l agreement t h a t t h e p r o v i s i o n s o f t h e covenant s h o u l d he

implemented, on t h e n a t i o n a l l e v e l , S t a t e s p a r t i e s t h r o u g h a p p r o p r i a t e
l e g i s l a t i v e , a d m i n i s t r a t i v e and o t h e r measures. As t o whether t h e r e s h o u l d
any i n t e r n a t i o n a l measures o f i n p l e m e n t a t i o n and, i f so, what t y p e s o r systems
of i m p l e m e n t a t i o n , t h e r e were c o n s i d e r a b l e d i f f e r e n c e s o f o p i n i o n .
25. W i t h r e g a r d t o c i v i l and p o l i t i c a l r i g h t s , b r o a d l y speaking, t h r e e views
Q /

were advanced. One was t h a t v i o l a t i o n s o f c i v i l and p o l i t i c a l r i g h t s were

b a s i c a l l y l e g a l m a t t e r s w h i c h s h o u l d be s e t t l e d b y a j u d i c i a l body. Accordingly,
i t was proposed t h a t an i n t e r n a t i o n a l c o u r t o f human r i g h t s s h o u l d be
e s t a b l i s h e d , w h i c h would s e t t l e d i s p u t e s a r i s i n g o u t o f t h e i n t e r p r e t a t i o n and
a p p l i c a t i o n o f t h e covenant and b e f o r e w h i c h S t a t e s , i n d i v i d u a l s , groups o f
i n d i v i d u a l s and non-governmental o r g a n i z a t i o n s m i g h t be p a r t i e s . Another view
was t h a t v i o l a t i o n s o f t h e covenant should be s e t t l e d b y d i p l o m a t i c n e g o t i a t i o n s
between S t a t e s concerned, and i n t h e event o f a f a i l u r e o f such n e g o t i a t i o n s ,
t h e y s h o u l d be s u b m i t t e d t o ad hoc f a c t - f i n d i n g committees. A t h i r d v i e w was
i n f a v o u r o f t h e e s t a b l i s h m e n t o f a permanent, independent body, w i t h f a c t
f i n d i n g and c o n c i l i a t i o n powers, t o c o n s i d e r c o m p l a i n t s f r o m S t a t e s o n l y , o r
f r o m i n d i v i d u a l s and non-governmental o r g a n i z a t i o n s as w e l l as S t a t e s .
26. I t was d e c i d e d t h a t f o r t h e i m p l e m e n t a t i o n o f t h e covenant on c i v i l and
n o l i t i c a l r i g h t s a human r i g h t s committee - a permanent body - s h o u l d be
9/
e s t a b l i s h e d , w h i c h w o u l d r e c e i v e any c o m p l a i n t b y a S t a t e p a r t y t h a t a n o t h e r

7/ The problem o f i m p l e m e n t a t i o n was d i s c u s s e d on numerous o c c a s i o n s .

Reference may be made e s p e c i a l l y t o t h e f o l l o w i n g documents :
E/CN.4/SR.38-39, 110-111, 114-115, 118-119, 132-135, 167-169, 209-214j
E/CN.4/530, 530/Add.l; ESC ( V I ) , s u p p l . 1, annex C; ESC ( I X ) , s u p p l . 10,
annexes I I and I I I .
8/ ESC ( I X ) , s u p p l . 10, annex I I I .
9/ See a r t . 27-48 o f t h e d r a f t covenant on c i v i l and p o l i t i c a l rights.
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S t a t e p a r t y was n o t g i v i n g e f f e c t t o a p r o v i s i o n o f t h e covenant, and which would

make a v a i l a b l e i t s good o f f i c e s t o t h e S t a t e s concerned w i t h a v i e w t o a f r i e n d l y
s o l u t i o n o f the matter. The Committee, however, c o u l d n o t c o n s i d e r any
p e t i t i o n s s u b m i t t e d by i n d i v i d u a l s , groups o r non-governmental o r g a n i z a t i o n s . ^
27. As t o t h e i m p l e m e n t a t i o n o f t h e covenant on economic, s o c i a l and c u l t u r a l
r i g h t s , i t was d e c i d e d t o e s t a b l i s h a system o f p e r i o d i c r e p o r t s , ^ t o be
s u b m i t t e d b y S t a t e s p a r t i e s t o t h e Economic and S o c i a l C o u n c i l , on t h e p r o g r e s s
made i n a c h i e v i n g t h e observance o f t h e r i g h t s r e c o g n i z e d t h e r e i n .
28. I t was. g e n e r a l l y agreed t h a t t h e procedure o f t h e human r i g h t s committee
s h o u l d be a p p l i c a b l e o n l y t o c i v i l and p o l i t i c a l r i g h t s , and n o t t o economic,
s o c i a l and c u l t u r a l r i g h t s , as t h e p r o v i s i o n s on c i v i l and p o l i t i c a l r i g h t s were
t o be p u t i n t o e f f e c t i m m e d i a t e l y w h i l e t h e p r o v i s i o n s on economic, s o c i a l and
c u l t u r a l r i g h t s were t o be r e a l i z e d p r o g r e s s i v e l y . On t h e o t h e r hand, i t was
t h o u g h t t h a t , w h i l e a system o f p e r i o d i c r e p o r t s s h o u l d be e s t a b l i s h e d f o r the
i m p l e m e n t a t i o n o f economic, s o c i a l and c u l t u r a l r i g h t s , some f o r m o f a r e p o r t i n g
12/
procedure s h o u l d a l s o be adopted i n r e s p e c t o f c i v i l and p o l i t i c a l rights.
29. A s u g g e s t i o n was made t h a t measures o f i m p l e m e n t a t i o n m i g h t be embodied i n a
separate i n s t r u m e n t . T h i s w o u l d encourage S t a t e s t o r a t i f y t h e covenants, and
would a l l o w them t o s u b s c r i b e t o t h e i n s t r u m e n t on measures o f i m p l e m e n t a t i o n a t
such t i m e as t h e y m i g h t w i s h . The o p i n i o n p r e v a i l e d , however, t h a t measures
of i m p l e m e n t a t i o n s h o u l d be i n t e g r a l p a r t s o f t h e covenants.
30. I n t h e course o f t h e debates on measures o f i m p l e m e n t a t i o n , a d i f f e r e n c e o f
o p i n i o n e x i s t e d as t o whether t h e r e s h o u l d be any i n t e r n a t i o n a l measures o f
implementation a t a l l .
31. A c c o r d i n g t o one s c h o o l o f t h o u g h t a l l i n t e r n a t i o n a l measures o f
i m p l e m e n t a t i o n - whether t h e e s t a b l i s h m e n t o f a good o f f i c e s committee, oro f
a system o f p e r i o d i c r e p o r t s , o r o f any o t h e r i n s t i t u t i o n - were c o n t r a r y

10/ For t h e d i s c u s s i o n on t h e r i g h t o f p e t i t i o n , see t h e a n n o t a t i o n on a r t . ho

o f d r a f t covenant on c i v i l and p o l i t i c a l r i g h t s .
11/ See a r t i c l e s 17-25 o f t h e d r a f t covenant on economic, s o c i a l and c u l t u r a l
rights.
12/ See a r t i c l e ^9 o f t h e d r a f t covenant on c i v i l and p o l i t i c a l rights.
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t o t h e p r i n c i p l e o f "domestic j u r i s d i c t i o n " as s e t f o r t h i n A r t i c l e 2,
paragraph 7, o f t h e C h a r t e r , and w o u l d undermine t h e s o v e r e i g n t y and
independence o f S t a t e s .
32. The c r e a t i o n o f a good o f f i c e s committee, i t was argued, w o u l d he i n
c o n f l i c t w i t h " t h e whole system o f i n t e r n a t i o n a l p u b l i c l a w r e g u l a t i n g t h e
r e l a t i o n s between S t a t e s " . Such a committee, i f e s t a b l i s h e d , would have t h e
e f f e c t o f t r a n s f o r m i n g a d i s p u t e between a p r i v a t e i n d i v i d u a l and h i s government
" i n t o a n i n t e r n a t i o n a l d i s p u t e , t h e r e b y s u b s t a n t i a l l y e n l a r g i n g t h e area o f
i n t e r n a t i o n a l d i f f e r e n c e s , f r i c t i o n s and i n c i d e n t s , u n n e c e s s a r i l y b u r d e n i n g and
13/
a g g r a v a t i n g i n t e r n a t i o n a l r e l a t i o n s and u n d e r m i n i n g the foundations of peace.
33. The e s t a b l i s h m e n t o f a system o f p e r i o d i c r e p o r t s , i t was contended, would
a l s o v i o l a t e A r t i c l e 2, paragraph 7, o f t h e C h a r t e r . I n t h e f i r s t place. States
s h o u l d be under no o b l i g a t i o n t o submit p e r i o d i c r e p o r t s t o t h e U n i t e d N a t i o n s .
Secondly, measures w h i c h S t a t e s m i g h t t a k e f r o m year t o year i n o r d e r
p r o g r e s s i v e l y t o r e a l i z e economic, s o c i a l and c u l t u r a l r i g h t s s h o u l d n o t be
s u b j e c t t o r e v i e w and c r i t i c i s m b y t h e Commission on Human R i g h t s , o r b y t h e
Economic and S o c i a l C o u n c i l , o r even b y t h e General Assembly.
3^. The o t h e r s c h o o l o f t h o u g h t m a i n t a i n e d t h a t measures o f i m p l e m e n t a t i o n , such
as a good o f f i c e s committee and a system o f p e r i o d i c r e p o r t s , were n o t i n t e n d e d
t o undermine t h e p r i n c i p l e o f "domestic j u r i s d i c t i o n " as s e t f o r t h i n A r t i c l e 2,
paragraph 7, o f t h e C h a r t e r . That p r i n c i p l e c o u l d n o t be so i n t e r p r e t e d as t o
p r e c l u d e any s o v e r e i g n S t a t e f r o m e n t e r i n g i n t o i n t e r n a t i o n a l agreements o r
t r e a t i e s such as t h e covenants on human r i g h t s . R a t i f i c a t i o n o f o r accession t o
t h e covenants was an a c t w h i c h any s o v e r e i g n S t a t e c o u l d t a k e .
35* I t was p o i n t e d o u t t h a t i n t e r n a t i o n a l p u b l i c l a w had made c o n s i d e r a b l e
progress i n recent times. One o f t h e purposes o f t h e U n i t e d N a t i o n s was " t o
achieve i n t e r n a t i o n a l c o - o p e r a t i o n ... i n p r o m o t i n g and encouraging respect f o r
human r i g h t s and f o r fundamental freedoms f o r a l l w i t h o u t d i s t i n c t i o n as t o r a c e ,
sex, language o r r e l i g i o n " . Indeed, under A r t i c l e 56 o f t h e C h a r t e r , a l l

13/ ESC ( I X ) , s u p p l . 10, annex III.

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Members o f t h e .United N a t i o n s "pledge themselves t o t a k e j o i n t and separate a c t i o n

in c o - o p e r a t i o n w i t h t h e O r g a n i z a t i o n f o r t h e achievement o f t h e purposes,"
i n t e r a l i a , o f p r o m o t i n g u n i v e r s a l r e s p e c t f o r and observance o f human r i g h t s and
fundamental freedoms.
36. The mere f a c t t h a t I n t e r n a t i o n a l covenants on human r i g h t s were b e i n g drawn
up i n d i c a t e d t h a t human r i g h t s were m a t t e r s o f i n t e r n a t i o n a l concern. By
a c c e p t i n g t h e covenants, S t a t e s p a r t i e s would have e n t e r e d i n t o o b l i g a t i o n s o f a n
i n t e r n a t i o n a l c h a r a c t e r and c o u l d h a r d l y t h e n c l a i m t h a t t h e p r o v i s i o n s o f t h e
covenants were m a t t e r s o f e x c l u s i v e l y domestic jurisdiction. Even i f t h e
covenants d i d n o t c o n t a i n any measures o f i m p l e m e n t a t i o n , t h e customary machinery
for t h e enforcement o f t r e a t i e s , such as a r b i t r a t i o n o r d i p l o m a t i c n e g o t i a t i o n ,
c o u l d be s e t i n m o t i o n i f any p r o v i s i o n s o f t h e covenants were v i o l a t e d .
37 I t was emphasized t h a t i m p l e m e n t a t i o n was t h e h e a r t o f t h e covenants and
w i t h o u t measures o f i m p l e m e n t a t i o n , t h e covenants would have l i t t l e practical
value. The U n i v e r s a l D e c l a r a t i o n h a v i n g been p r o c l a i m e d , t h e p r i m a r y purpose
of d r a f t i n g t h e covenants was t o o r g a n i z e i n t e r n a t i o n a l co-cp-eration f o r t h e
e f f e c t i v e observance o f human r i g h t s .
38. The c r e a t i o n o f a good o f f i c e s committee, i t was s t a t e d , would be p u r e l y
a v o l u n t a r y a c t on t h e p a r t o f r a t i f y i n g o r a c c e d i n g S t a t e s . Having committed
themselves t o guarantee t h e r i g h t s s e t f o r t h i n t h e covenant on c i v i l and
p o l i t i c a l r i g h t s , S t a t e s p a r t i e s s h o u l d have l i t t l e h e s i t a t i o n i n s u b m i t t i n g any
Ik/
d i s p u t e s o v e r t h e a p p l i c a t i o n o f t h e covenant t o a good o f f i c e s committee.
39* As t o p e r i o d i c r e p o r t s , i t was emphasized, t h e purpose was n o t t o c r i t i c i z e
or condemn any p a r t i c u l a r governments ; i t was r a t h e r t o r e v i e w f r o m t i m e t o
t i m e t h e p r o g r e s s made i n a c h i e v i n g t h e observance o f economic, s o c i a l and
c u l t u r a l r i g h t s and t o d e v i s e means o f i n t e r n a t i o n a l c o - o p e r a t i o n i n f u r t h e r i n g
or e x p e d i t i n g the progress. T h i s would be i n complete harmony w i t h t h e s p i r i t
of t h e Charter o f the United Nations.

lk/ The General Assembly, a t i t s f i f t h s e s s i o n i n 1950, r e j e c t e d two p r o p o s a l s .

The f i r s t was t h a t t h e General Assembly s h o u l d r e c o g n i z e t h a t i m p l e m e n t a t i o n
of t h e covenant f e l l e n t i r e l y w i t h i n t h e domestic j u r i s d i c t i o n o f S t a t e s .
The second c a l l e d f o r t h e d e l e t i o n o f t h e p r o v i s i o n s r e l a t i n g t o t h e human
r i g h t s committee on t h e grounds t h a t these c o n s t i t u t e d an a t t e m p t a t
i n t e r v e n t i o n i n t h e domestic a f f a i r s o f S t a t e s and an encroachment on t h e i r
s o v e r e i g n t y . See GA (v), 317th mtg. and annexes, a . i . 63, A/1576. A t i t s
s e v e n t h s e s s i o n i n 1951 "the Commission on Human R i g h t s r e j e c t e d a p r o p o s a l
b y w h i c h i t would r e s o l v e t o o m i t f r o m t h e d r a f t covenant t h e p r o v i s i o n s
r e l a t i n g t o t h e human r i g h t s committee on t h e grounds t h a t t h e y envisaged
forms o f c o n t r o l w h i c h c o n s t i t u t e d a n a t t e m p t t o i n t e r v e n e i n t h e i n t e r n a l
a f f a i r s o f S t a t e s and v i o l a t e d t h e i r s o v e r e i g n t y . SEE ESC ( X I I l ) ,
s u p p l . 9) p a r a . 72.
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CHAPTER I I I

THE PREAMBLES OF BOTH DRAFT COVENANTS

Table o f Contents

Paragraphs

Foundation o f freedom, j u s t i c e and peace 3-5

I d e a l o f t h e f r e e man 7-8
Charter obligation 9-10
Responsibility o f the individual 11-14

D r a f t Covenant on C i v i l and P o l i t i c a l R i g h t s

The S t a t e s P a r t i e s h e r e t o ,
C o n s i d e r i n g t h a t , i n accordance w i t h t h e p r i n c i p l e s p r o c l a i m e d i n t h e
C h a r t e r o f t h e U n i t e d N a t i o n s , r e c o g n i t i o n o f t h e i n h e r e n t d i g n i t y and o f
the e q u a l and i n a l i e n a b l e r i g h t s o f a l l members o f t h e human f a m i l y i s t h e
f o u n d a t i o n o f freedom, j u s t i c e and peaee i n t h e w o r l d ,
Recognizing t h a t these r i g h t s d e r i v e f r o m t h e i n h e r e n t d i g n i t y o f t h e
human p e r s o n ,
R e c o g n i z i n g t h a t , i n accordance w i t h t h e U n i v e r s a l D e c l a r a t i o n o f
Human R i g h t s , t h e i d e a l o f f r e e man e n j o y i n g c i v i l and p o l i t i c a l freedom
and freedom f r o m f e a r and want can o n l y be a c h i e v e d i f c o n d i t i o n s a r e
c r e a t e d whereby everyone may e n j o y h i s c i v i l a n d p o l i t i c a l r i g h t s , as w e l l
as h i s economic, s o c i a l and c u l t u r a l r i g h t s ,
C o n s i d e r i n g t h e o b l i g a t i o n o f S t a t e s under t h e C h a r t e r o f t h e U n i t e d
N a t i o n s t o promote u n i v e r s a l r e s p e c t f o r , and observance o f , human r i g h t s
and freedoms.
Realizing t h a t the i n d i v i d u a l , having duties t o other i n d i v i d u a l s
and t o t h e community t o which he b e l o n g s , i s under r e s p o n s i b i l i t y t o
s t r i v e f o r t h e p r o m o t i o n and observance o f t h e r i g h t s r e c o g n i z e d i n
Covenant,
Have agreed upon t h e f o l l o w i n g a r t i c l e s ;
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D r a f t Covenant on Economic, S o c i a l and C u l t u r a l R i g h t s

The S t a t e s P a r t i e s h e r e t o ,
C o n s i d e r i n g t h a t , i n accordance w i t h t h e p r i n c i p l e s p r o c l a i m e d i n t h e
Charter o f t h e U n i t e d Nations, r e c o g n i t i o n o f t h e i n h e r e n t d i g n i t y and o f
t h e e q u a l and i n a l i e n a b l e r i g h t s o f a l l members o f t h e human f a m i l y i s t h e
f o u n d a t i o n o f freedom, j u s t i c e and peace i n t h e w o r l d ,
R e c o g n i z i n g t h a t these r i g h t s d e r i v e f r o m t h e i n h e r e n t d i g n i t y o f t h e
human p e r s o n ,
R e c o g n i z i n g t h a t , i n accordance w i t h t h e U n i v e r s a l D e c l a r a t i o n o f Human
R i g h t s , t h e i d e a l o f f r e e man e n j o y i n g freedom f r o m f e a r and want can o n l y be
a c h i e v e d i f c o n d i t i o n s a r e c r e a t e d whereby everyone may e n j o y h i s economic,
s o c i a l and c u l t u r a l r i g h t s , as w e l l as h i s c i v i l and p o l i t i c a l r i g h t s ,
C o n s i d e r i n g t h e o b l i g a t i o n o f S t a t e s under t h e C h a r t e r o f t h e U n i t e d
N a t i o n s t o promote u n i v e r s a l r e s p e c t f o r , and observance o f , human r i g h t s
and freedoms,
R e a l i z i n g t h a t t h e i n d i v i d u a l , h a v i n g d u t i e s t o o t h e r i n d i v i d u a l s and
t o t h e community t o which he b e l o n g s , i s under r e s p o n s i b i l i t y t o s t r i v e f o r
t h e p r o m o t i o n and observance o f t h e r i g h t s r e c o g n i z e d i n t h i s Covenant,
Have agreed upon t h e f o l l o w i n g a r t i c l e s :
1. The preamble o f each covenant serves as an " i n t r o d u c t i o n " t o t h e a r t i c l e s
which f o l l o w . I t sets f o r t h general p r i n c i p l e s r e l a t i n g t o the inherent d i g n i t y
o f t h e human p e r s o n , p o r t r a y s t h e i d e a l o f t h e f r e e man i n accordance w i t h t h e
U n i v e r s a l D e c l a r a t i o n o f Human R i g h t s , r e i t e r a t e s t h e o b l i g a t i o n o f S t a t e s
under t h e C h a r t e r o f t h e U n i t e d N a t i o n s t o promote human r i g h t s and reminds t h e
i n d i v i d u a l o f h i s r e s p o n s i b i l i t y t o s t r i v e f o r t h e observance o f human r i g h t s .
2. I n t h e course o f t h e d r a f t i n g o f t h e covenants two separate preambles
were p r e p a r e d . However, p u r s u a n t t o General Assembly r e s o l u t i o n 5U3 ( V l ) i t
was d e c i d e d t h a t , i n o r d e r t o u n d e r l i n e t h e u n i t y o f purpose, t h e two preambles
s h o u l d c o n t a i n as many s i m i l a r clauses as p o s s i b l e and a p p r o p r i a t e , one g i v i n g
prominence t o c i v i l and p o l i t i c a l r i g h t s , t h e o t h e r t o economic, s o c i a l and
cultural rights.
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7
F o u n d a t i o n o f freedom, j u s t i c e and peace-

3. The f i r s t paragraph o f each preamble i s a statement o f a g e n e r a l p r i n c i p l e

that "recognition o f t h e i n h e r e n t d i g n i t y and o f t h e e q u a l and i n a l i e n a b l e
r i g h t s o f a l l members o f t h e human f a m i l y i s t h e f o u n d a t i o n o f freedom, j u s t i c e
and peace i n t h e w o r l d " . T h i s clause was t a k e n f r o m t h e f i r s t paragraph o f t h e
preamble o f t h e U n i v e r s a l D e c l a r a t i o n .
k. I t w i l l be n o t e d t h a t t h e f i r s t paragraph o f t h e preamble o f each covenant
c o n t a i n s t h e phrase " i n accordance w i t h t h e p r i n c i p l e s p r o c l a i m e d i n t h e C h a r t e r
o f t h e U n i t e d N a t i o n s " whereas t h a t o f t h e D e c l a r a t i o n doe3 n o t . When t h e
D e c l a r a t i o n was b e i n g d r a f t e d t h e view was expressed t h a t t h e clause "recognition
o f t h e i n h e r e n t d i g n i t y and o f t h e e q u a l and i n a l i e n a b l e r i g h t s o f a l l members o f
t h e human f a m i l y i s t h e f o u n d a t i o n o f freedom, j u s t i c e and peace i n t h e w o r l d "
was a s t a t e m e n t o f a g e n e r a l p r i n c i p l e , which was independent o f the existence
o f t h e U n i t e d N a t i o n s and had an i n t r i n s i c value o f i t s own.
5. The e x p r e s s i o n " p r i n c i p l e s o f t h e C h a r t e r " , a c c o r d i n g t o one o p i n i o n was t o o
indefinite. I t c o u l d be i n t e r p r e t e d so b r o a d l y as t o encompass t h e e n t i r e
Charter. I t c o u l d be c o n s t r u e d n a r r o w l y t o r e f e r t o t h e " p r i n c i p l e s " s e t f o r t h
i n A r t i c l e 2 o f t h e C h a r t e r and t o exclude t h e "purposes" i n A r t i c l e 1, among
which was t h e achievement o f " i n t e r n a t i o n a l c o - o p e r a t i o n ... i n p r o m o t i n g and
e n c o u r a g i n g r e s p e c t f o r human r i g h t s and f o r f u n d a m e n t a l freedoms f o r a l l w i t h o u t
d i s t i n c t i o n as t o r a c e , sex, language or r e l i g i o n " .

2/
7
O r i g i n o f human r i g h t s -
6. A p r o p o s i t i o n was advanced t h a t human r i g h t s " a r e founded on t h e g e n e r a l
p r i n c i p l e s o f law recognized b y c i v i l i z e d nations". A g a i n s t t h i s i t was argued
t h a t t h e r i g h t s o f man a p p e r t a i n e d t o h i m as a human b e i n g and c o u l d n o t be
a l i e n a t e d and t h a t t h e y c o n s t i t u t e d a l a w a n t e r i o r and s u p e r i o r t o t h e p o s i t i v e
law o f c i v i l s o c i e t y . I t was proposed, t h e r e f o r e , t h a t t h e preamble s h o u l d
r e c o g n i z e t h a t t h e r i g h t s s e t f o r t h i n t h e covenants " a r e i n a l i e n a b l e and d e r i v e
f r o m t h e i n h e r e n t d i g n i t y o f t h e human person". While t h e r e was g e n e r a l

1/ E/CN.4/SR.75, 308, 331, 333; E/CN.4/353/Add.lO; E/CN.4/L.167.

2/ E/CN. U/SR. 138, 331, 333; E/CN.ty353/Add.lO; E/CN. 4/11.208.
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acceptance o f t h e i d e a t h a t t h e r i g h t s r e c o g n i z e d i n t h e covenants "derive

from t h e inherent d i g n i t y o f t h e human p e r s o n " , t h e r e was no agreement as t o
whether such r i g h t s were " i n a l i e n a b l e " .

I d e a l o f t h e f r e e man^/

7. The t h i r d paragraph o f each preamble was based upon t h e U n i v e r s a l Declaration

as i n t e r p r e t e d b y t h e General Assembly i n r e s o l u t i o n 421 E ( V ) and r e a f f i r m e d
i n r e s o l u t i o n 543 ( V l ) . I n these r e s o l u t i o n s t h e G e n e r a l Assembly d e c l a r e d
t h a t "the enjoyment o f c i v i c and p o l i t i c a l freedoms and o f economic, s o c i a l
and c u l t u r a l r i g h t s a r e i n t e r c o n n e c t e d and i n t e r d e p e n d e n t " and t h a t "when
d e p r i v e d o f economic, s o c i a l and c u l t u r a l r i g h t s man does n o t r e p r e s e n t t h e human
p e r s o n whom t h e U n i v e r s a l D e c l a r a t i o n r e g a r d s as t h e i d e a l o f t h e f r e e man".
8. I t i s i n t h e two t h i r d paragraphs o f t h e preambles t h a t a d i f f e r e n c e i n
emphasis and hence i n w o r d i n g e x i s t s . I n t h e d r a f t covenant on c i v i l and p o l i t i c a l
r i g h t s t h e t h i r d paragraph s t a t e s t h a t "the i d e a l o f f r e e men e n j o y i n g c i v i l and
p o l i t i c a l freedom and freedom f r o m f e a r and want can o n l y be a c h i e v e d i f
conditions a r e c r e a t e d whereby everyone may e n j o y h i s c i v i l and p o l i t i c a l r i g h t s
as w e l l as economic, s o c i a l and c u l t u r a l r i g h t s " . I n t h e d r a f t covenant on
economic, s o c i a l and c u l t u r a l r i g h t s i t i s d e c l a r e d t h a t " t h e i d e a l . o f f r e e men
enjoying freedom f r o m f e a r and want can o n l y be a c h i e v e d i f c o n d i t i o n s are created
whereby everyone may e n j o y h i s economic, s o c i a l and c u l t u r a l r i g h t s as w e l l as
h i s c i v i l and p o l i t i c a l r i g h t s " . These paragraphs were i n t e n d e d t o u n d e r l i n e
the u n i t y o f t h e two covenants w h i l e a t t h e same time m a i n t a i n i n g the d i s t i n c t i v e
c h a r a c t e r o f each.

4/
7
Charter o b l i g a t i o n -
9. Under A r t i c l e 56 o f t h e C h a r t e r a l l Members o f t h e U n i t e d N a t i o n s "pledge
themselves t o t a k e j o i n t and separate a c t i o n i n c o - o p e r a t i o n w i t h t h e O r g a n i s a t i o n "
f o r t h e purposes o f p r o m o t i n g " u n i v e r s a l r e s p e c t f o r and observance o f human

3/ E/CN.4/SR.331, 333; E/CN.4/L.167.

4/ E/CN.4/SR.137, 138, 193.
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r i g h t s and f u n d a m e n t a l freedoms f o r a l l w i t h o u t d i s t i n c t i o n as t o r a c e , sex,

language o r r e l i g i o n " . The f o u r t h paragraph o f each preamble r e a f f i r m s this
obligation.
10. A q u e s t i o n was r a i s e d whether a S t a t e p a r t y t o t h e covenants b u t non-member
of t h e U n i t e d N a t i o n s w o u l d be bound b y t h e o b l i g a t i o n under t h e C h a r t e r . One
v i e w was t h a t any non-member S t a t e which became a p a r t y t o t h e covenants would
be bound b y t h e C h a r t e r p r o v i s i o n s i n so f a r as t h e y concerned human r i g h t s .
A n o t h e r v i e w was t h a t such a S t a t e w o u l d be bound o n l y b y t h e covenants and,
b y s u b s c r i b i n g t o t h e f o u r t h considerandum, c o u l d n o t be deemed t o be i p s o f a c t o
bound b y t h e o b l i g a t i o n under A r t i c l e 56 o f t h e C h a r t e r .

Responsibility of the i n d i v i d u a l ^

11. I t was g e n e r a l l y agreed t h a t r i g h t s and d u t i e s were c o r r e l a t i v e and e v e r y

r i g h t c a r r i e d w i t h i t a corresponding duty.
12. A r t i c l e 29 o f t h e U n i v e r s a l D e c l a r a t i o n p r o v i d e s t h a t "everyone has d u t i e s
to t h e community i n which a l o n e t h e f r e e and f u l l development o f h i s p e r s o n a l i t y
I s p o s s i b l e " and t h a t i n t h e e x e r c i s e o f h i s r i g h t s and freedoms everyone shall
be s u b j e c t t o l i m i t a t i o n s d e t e r m i n e d b y l a w f o r t h e purpose o f " s e c u r i n g due
r e c o g n i t i o n and r e s p e c t f o r t h e r i g h t s and freedoms o f o t h e r s " . The f i f t h
p a r a g r a p h o f t h e preamble o f each covenant r e a f f i r m s such d u t i e s .
13. F u r t h e r m o r e , i n p r o c l a i m i n g t h e U n i v e r s a l D e c l a r a t i o n t h e G e n e r a l Assembly
s t a t e d t h a t e v e r y i n d i v i d u a l " s h a l l s t r i v e ... t o promote r e s p e c t f o r these
r i g h t s and freedoms ... and t o secure t h e i r u n i v e r s a l l y e f f e c t i v e recognition
and observance". I n t h e f i f t h premabular c l a u s e o f each covenant t h e
r e s p o n s i b i l i t y o f t h e i n d i v i d u a l i s once more emphasized.
Ik. V/hile t h e covenants were i n t e n d e d t o p r o t e c t human r i g h t s and freedoms i t
was t h o u g h t a p p r o p r i a t e t h a t t h e d u t i e s and r e s p o n s i b i l i t i e s o f t h e i n d i v i d u a l
s h o u l d be mentioned i n t h e preambles.

5/ E/CN.U/AC.5/2; E/CN./SR. 137, 138, 193, 308; E/CN.VL.171.

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DOCUMENTATION

Organ and Records o f Artiele

session discussion Other documents number
CHR, DC ( I ) E/CN.4/AC.l/SR.10 E/CN.4/AC.1/4; E/CN.4/21, Preamble and
annex G Article 1

E/CN.4/AC.3/SR.5
TI
( I I ) E/CN.4/AC.5/2; ESC ( V l ) ;
s u p p l . 1 , annex

CHR, DC ( I I ) E/CN.4/AC.l/SR.26 ti
E/CN. 4/AC. 1/19,33,35;
E/CN.4/95, annex

CHR ( I I I ) E/CN.4/SR.75 ESC ( V I I ) , suppl.2,

annex

CHR ( V ) E/CN.4/SR.124 E/CN.4/323; ESC ( I X ) ,

suppl.10, annex I

E/CN.4/353/Add.lO, 365,
CHR ( V I ) E/CN.4/SR.137j 138,
193, 199 370, 376, 377, 379, 491;
E/CN.4/L.11; ESC ( X l ) ,
s u p p l . 5 , annex I , preamble

CHR ( V I I ) E/CN.4/528; ESC ( X I I I ) , Preamble

s u p p l . 9 , annex I

CHR ( V I I I ) E/CN.4/SR.308, E/CN.4/528/Add.1, Preamble

331, 333 666/Add.l5, 668/Add. 18;
E/CN.4/L.148,167,171,208;
ESC ( X I V ) , suppl.4,
p a r a s . I6I-62 and 286-89,
annex I , A and B, preambles
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CHAPTER I V

THE RIGHT OF PEOPLES AND NATIONS TO SELF-DETERMINATION

P a r t I , A r t i c l e 1, o f b o t h d r a f t covenants

Table o f Contents

Paragraphs

Political principle or legal right 2-5

Charter p r o v i s i o n s 6-7
A l l peoples and a l l n a t i o n s 8-10
Meaning o f s e l f - d e t e r m i n a t i o n 11 - 15
Obligations o f a l l States l 6 - 18
Permanent s o v e r e i g n t y over n a t u r a l w e a l t h and r e s o u r c e s 19 - 21
The p r o b l e m o f m i n o r i t i e s 22

1. A l l peoples and a l l n a t i o n s s h a l l have t h e r i g h t o f

s e l f - d e t e r m i n a t i o n , namely, t h e r i g h t f r e e l y t o determine their
p o l i t i c a l , economic, s o c i a l and c u l t u r a l s t a t u s .

2. A l l S t a t e s , i n c l u d i n g those h a v i n g r e s p o n s i b i l i t y f o r t h e
a d m i n i s t r a t i o n o f n o n - s e l f - g o v e r n i n g and t r u s t t e r r i t o r i e s and
t h o s e c o n t r o l l i n g i n whatsoever manner t h e e x e r c i s e o f t h a t
r i g h t by another p e o p l e , s h a l l promote t h e r e a l i z a t i o n o f t h a t
r i g h t i n a l l t h e i r t e r r i t o r i e s , and s h a l l r e s p e c t t h e maintenance
of that r i g h t i n other States, i n conformity w i t h t h e provisions
of t h e United Nations Charter.

3. The r i g h t o f peoples t o s e l f - d e t e r m i n a t i o n s h a l l a l s o i n c l u d e
permanent s o v e r e i g n t y over t h e i r n a t u r a l w e a l t h and r e s o u r c e s .
I n no case may a people be d e p r i v e d o f i t s own means o f s u b s i s t e n c e
on t h e grounds o f any r i g h t s t h a t may be c l a i m e d b y o t h e r S t a t e s .

1. By r e s o l u t i o n 5^5 ( V l ) t h e General Assembly d e c i d e d t h a t t h e covenant o r

covenants on human r i g h t s s h o u l d i n c l u d e an a r t i c l e on t h e r i g h t o f a l l peoples
and n a t i o n s t o s e l f - d e t e r m i n a t i o n . I t f u r t h e r s t i p u l a t e d t h a t t h e a r t i c l e
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" s h a l l he d r a f t e d i n t h e f o l l o w i n g terms: ' A l l peoples s h a l l have t h e

r i g h t o f s e l f - d e t e r m i n a t i o n ' , and s h a l l s t i p u l a t e t h a t a l l S t a t e s ,
i n c l u d i n g those h a v i n g r e s p o n s i b i l i t y f o r t h e a d m i n i s t r a t i o n o f non-
s e l f - g o v e r n i n g t e r r i t o r i e s , s h o u l d promote t h e r e a l i z a t i o n o f t h a t
r i g h t , i n c o n f o r m i t y w i t h t h e purposes and p r i n c i p l e s o f t h e U n i t e d Nations
and t h a t S t a t e s h a v i n g r e s p o n s i b i l i t y f o r t h e a d m i n i s t r a t i o n o f n o n - s e l f -
g o v e r n i n g t e r r i t o r i e s s h o u l d promote t h e r e a l i z a t i o n o f t h a t r i g h t i n
r e l a t i o n t o t h e peoples o f such t e r r i t o r i e s " .

Political principle or legal right^

2. - D u r i n g t h e c o n s i d e r a t i o n o f an a r t i c l e on s e l f - d e t e r m i n a t i o n , a p r e l i m i n a r y
q u e s t i o n was r a i s e d whether " s e l f - d e t e r m i n a t i o n " was a p o l i t i c a l p r i n c i p l e o r a
legal right. I f i t were a r i g h t , i t m i g h t be an a p p r o p r i a t e s u b j e c t o f an
a r t i c l e i n t h e covenants on human r i g h t s ; i f n o t , i t s h o u l d have no p l a c e i n
such l e g a l i n s t r u m e n t s .
3. One s c h o o l o f t h o u g h t m a i n t a i n e d t h a t s e l f - d e t e r m i n a t i o n was a p o l i t i c a l
p r i n c i p l e o f t h e h i g h e s t i m p o r t a n c e , b u t n o t a r i g h t i n t h e s t r i c t l e g a l sense,
n o t a human r i g h t o r an i n d i v i d u a l r i g h t . A r t i c l e s 1 and 55 o f t h e C h a r t e r , i t
was p o i n t e d o u t , spoke o f t h e " p r i n c i p l e " , n o t o f t h e " r i g h t " , o f s e l f -
determination. I t was argued t h a t " s e l f - d e t e r m i n a t i o n " was a nebulous t e r m ;
t h a t i f i t were t o denote a r i g h t t h a t t e r m s h o u l d be d e f i n e d as p r e c i s e l y as
p o s s i b l e i n o r d e r t h a t t h e r e might be no m i s u n d e r s t a n d i n g o f i t s substance o r
content. As commonly used, t h e e x p r e s s i o n " t h e r i g h t o f s e l f - d e t e r m i n a t i o n "
meant d i f f e r e n t t h i n g s t o d i f f e r e n t persons: i t m i g h t mean t h e r i g h t t o
" l o c a l autonomy", t o " s e l f - g o v e r n m e n t " , t o "secession o r a s s o c i a t i o n " , t o
"independent and s o v e r e i g n s t a t e h o o d " . F u r t h e r m o r e , t h e concepts o f a "people"
and a " n a t i o n " were a l s o e x t r e m e l y vague. There were no s c i e n t i f i c d e f i n i t i o n s
o f such t e r m s . I t was asked: Was a " m i n o r i t y " t o be c o n s i d e r e d as a "people"?
Were t h e " i n h a b i t a n t s " o f a n o n - s e l f - g o v e r n i n g o r t r u s t t e r r i t o r y n e c e s s a r i l y a

1/ GA ( V I ) , 3rd Com., 361st, 363rd, 366th, 371st mtgs.; E/CN.4/SR.252-258;

GA ( I X ) , 3rd Com., 562nd-573rd and 575th-580th mtgs. For p r o p o s a l s
s u b m i t t e d d u r i n g t h e f i r s t r e a d i n g o f t h e d r a f t covenants a t t h e
n i n t h s e s s i o n o f t h e General Assembly, see / / 1 2 and ^27.
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"nation"? U n t i l such concepts were agreed upon, i t would he premature t o w r i t e

i n t o an i n t e r n a t i o n a l l e g a l i n s t r u m e n t an a r t i c l e on t h e " r i g h t " o f "peoples" and
"nations" t o "self-determination".
k. Another s c h o o l o f t h o u g h t m a i n t a i n e d t h a t s e l f - d e t e r m i n a t i o n was a " r i g h t "
as w e l l as a " p r i n c i p l e " , and was indeed t h e most f u n d a m e n t a l o f a l l human r i g h t s .
I t was s t a t e d t h a t , as a r i g h t , s e l f - d e t e r m i n a t i o n was a c o l l e c t i v e r i g h t
a p p e r t a i n i n g t o a l l peoples and a l l n a t i o n s , and t h a t , d e n i e d t h a t r i g h t no
peoples o r n a t i o n s were f r e e , l e t alone i n d i v i d u a l members t h e r e o f . I t was
e s s e n t i a l t h e r e f o r e t h a t t h e r i g h t o f peoples and n a t i o n s t o s e l f - d e t e r m i n a t i o n
s h o u l d be w r i t t e n i n t o t h e covenants on human r i g h t s , as t h a t r i g h t was a
p r e r e q u i s i t e f o r t h e enjoyment o f a l l t h e r i g h t s and freedoms o f t h e i n d i v i d u a l .
Admittedly i t was d i f f i c u l t t o d e f i n e a "people" o r " n a t i o n " , b u t i t was
q u e s t i o n e d whether i t would ever be p o s s i b l e t o a r r i v e a t a d e f i n i t i o n o f any such
t e r m t h a t w o u l d be u n i v e r s a l l y a p p l i c a b l e and a c c e p t a b l e . The General Assembly,
t h e h i g h e s t organ i n i n t e r n a t i o n a l community, had a l r e a d y recognized t h e r i g h t o f
p e o p l e s and n a t i o n s t o s e l f - d e t e r m i n a t i o n ; t h e n e x t s t e p was t o f o r m u l a t e an
appropriate a r t i c l e by w h i c h S t a t e s would u n d e r t a k e a solemn o b l i g a t i o n t o
promote and r e s p e c t t h a t r i g h t .
5. A t h i r d t r e n d o f t h o u g h t was t h a t s e l f - d e t e r m i n a t i o n c o u l d be t h e s u b j e c t
o f a s p e c i a l d e c l a r a t i o n o r a s e p a r a t e covenant, depending upon whether i t was t o
be c o n s i d e r e d as a p r i n c i p l e o r a r i g h t . The two covenants under p r e p a r a t i o n would
t h e n be c o n f i n e d t o c i v i l and p o l i t i c a l r i g h t s and economic, s o c i a l and c u l t u r a l
r i g h t s r e s p e c t i v e l y , and would t h u s be l e s s c o n t r o v e r s i a l and more g e n e r a l l y
acceptable. Another s u g g e s t i o n was t h a t t h e p r i n c i p l e o r t h e r i g h t o f s e l f -
determination m i g h t be t h e s u b j e c t o f a clause i n t h e preamble t o each covenant;
t h i s would s i g n i f y t h e o v e r - a l l importance o f s e l f - d e t e r m i n a t i o n w i t h o u t creating
any p o s s i b l e l e g a l u n c e r t a i n t y as t o i t s p r e c i s e meaning.

2/
Charter provisions'
6. Comments were made i n r e s p e c t o f A r t i c l e s 1 and 55 o f t h e C h a r t e r on t h e one
hand and A r t i c l e s 73(h) and () on t h e o t h e r . I t was suggested t h a t t h e r e was
|7 GTVI), 3rd Com., 370th, 397th mtgs;
E/CNA/SR.252, 253, 2^k;
E/CNA/649, 662;
GA ( I X ) , 3rd Com., 569th-570th mtgs.
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a d i s t i n c t i o n between-the p r i n c i p l e o f s e l f - d e t e r m i n a t i o n o f peoples as r e f e r r e d
t o i n A r t i c l e s 1 and 55 &cl t h e r e f e r e n c e t o " s e l f - g o v e r n m e n t " o r "independence"
i n A r t i c l e s 73(b) and 7 6 ( b ) . The p r i n c i p l e o f - s e l f - d e t e r m i n a t i o n , i t was s a i d ,
r e f e r r e d t o s o v e r e i g n S t a t e s , and a c c o r d i n g t o A r t i c l e s 1 and 55, t h e r e l a t i o n s
between such S t a t e s s h o u l d be based upon " r e s p e c t f o r t h e p r i n c i p l e o f e q u a l
r i g h t s and s e l f - d e t e r m i n a t i o n o f p e o p l e s " . Under A r t i c l e s 73(b) t h e m e t r o p o l i t a n
powers s h o u l d endeavour t o "develop s e l f - g o v e r n m e n t " i n n o n - s e l f - g o v e r n i n g
t e r r i t o r i e s , and under A r t i c l e 76(b) t h e a d m i n i s t e r i n g a u t h o r i t i e s s h o u l d promote
t h e development o f t h e i n h a b i t a n t s o f t r u s t t e r r i t o r i e s t o w a r d "self-government
o r independence", ( i t was n o t e d t h a t t h e t e r m "independence" was d e l i b e r a t e l y -
omitted from A r t i c l e 73(b)). The e x p r e s s i o n " s e l f - d e t e r m i n a t i o n " i n
A r t i c l e s 1 and 55 s h o u l d n o t t h e r e f o r e be l o o s e l y i d e n t i f i e d w i t h t h e e x p r e s s i o n s
" s e l f - g o v e r n m e n t " i n A r t i c l e 73(h) and " s e l f - g o v e r n m e n t o r independence" i n
A r t i c l e 76(b).
7. On t h e o t h e r hand i t was t h o u g h t t h a t , w h i l e t h e r e was a d i f f e r e n c e i n
w o r d i n g and i n c o n t e x t , t h e p r i n c i p l e o f s e l f - d e t e r m i n a t i o n and t h e r i g h t t o
s e l f - g o v e r n m e n t o r independence were n o t d i f f e r e n t i n essence. The U n i t e d N a t i o n s
c o u l d n o t promote t h e p r i n c i p l e o f s e l f - d e t e r m i n a t i o n o f peoples i n accordance
w i t h A r t i c l e s 1 and 55 w i t h o u t p r o m o t i n g t h e r i g h t o f t h e peoples o f n o n - s e l f -
g o v e r n i n g and t r u s t t e r r i t o r i e s t o s e l f - g o v e r n m e n t o r independence i n accordance
w i t h A r t i c l e s 73(h) and 7 6 ( b ) , o r v i c e v e r s a . I t w o u l d be an absurd i n t e r p r e t a t i o n
t h a t under t h e C h a r t e r t h e peoples o f n o n - s e l f - g o v e r n i n g and t r u s t territories
s h o u l d have t h e r i g h t t o s e l f - g o v e r n m e n t o r independence, b u t n o t t h e r i g h t t o
self-determination. The r i g h t o f s e l f - d e t e r m i n a t i o n was a u n i v e r s a l r i g h t ; I t
was a r i g h t o f a l l peoples and a l l n a t i o n s .

3/
A l l peoples and a l l n a t i o n s '
8. The f i r s t clause i n paragraph 1 o f t h e a r t i c l e r e a d : " A l l peoples and a l l
n a t i o n s s h a l l have t h e r i g h t o f s e l f - d e t e r m i n a t i o n " . The clause a f f i r m e d t h e
p r i n c i p l e t h a t t h e r i g h t o f s e l f - d e t e r m i n a t i o n was u n i v e r s a l .

57 GA ( V I ) , 3rd Com., 397th mtg.;

E/CN.U/SR.252-258;
//.21, 23, 27.
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Fage h2

9. The word "peoples" was u n d e r s t o o d t o mean peoples i n a l l c o u n t r i e s and

t e r r i t o r i e s , whether independent, t r u s t o r n o n - s e l f - g o v e r n i n g . Suggestions were
made t o t h e e f f e c t t h a t "peoples" s h o u l d a p p l y t o " l a r g e compact n a t i o n a l groups,"
to "ethnic, religious or linguistic minorities," t o "racial units inhabiting
well-defined t e r r i t o r i e s , " etc. I t was t h o u g h t , however, t h a t t h e t e r m "peoples"
s h o u l d be u n d e r s t o o d i n i t s most g e n e r a l sense and t h a t no d e f i n i t i o n was
necessary. F u r t h e r m o r e , t h e r i g h t o f m i n o r i t i e s was a s e p a r a t e p r o b l e m o f g r e a t
complexity.
10. The t e x t o f t h e c l a u s e , as i t appeared i n General Assembly r e s o l u t i o n
5^-5 ( V I ) , read: " A l l peoples s h a l l have t h e r i g h t o f s e l f - d e t e r m i n a t i o n . " The
words " a l l n a t i o n s " were added i n o r d e r t o emphasize t h e u n i v e r s a l c h a r a c t e r o f
the r i g h t . There were nations w h i c h were e r s t w h i l e s o v e r e i g n b u t were no l o n g e r
masters o f t h e i r own d e s t i n i e s ; and n a t i o n s , now independent, w h i c h m i g h t l o s e
their right o f self-determination.

Meaning o f s e l f - d e t e r m i n a t i o n '

11. The r i g h t o f s e l f - d e t e r m i n a t i o n was d e f i n e d i n paragraph 1 o f t h e a r t i c l e

as t h e r i g h t o f a l l peoples and n a t i o n s " f r e e l y t o determine t h e i r political,
economic, s o c i a l and c u l t u r a l status".
12. T h i s d e f i n i t i o n , i t was s a i d , was a v e r y comprehensive c o n c e p t i o n o f t h e
r i g h t of self-determination. Every people o r n a t i o n s h o u l d be f r e e t o e s t a b l i s h
i t s own p o l i t i c a l i n s t i t u t i o n s , t o develop i t s own economic r e s o u r c e s , and t o
direct i t s own s o c i a l and c u l t u r a l e v o l u t i o n , w i t h o u t t h e i n t e r f e r e n c e o f o t h e r
peoples o r n a t i o n s .
13. A g a i n s t t h i s p r o p o s a l , i t was s a i d , t h a t t h e d e f i n i t i o n was t o o b r o a d i n t h a t
i t might sanction t h e b u r n i n g o f f o r e i g n books and t h e c o n f i s c a t i o n o f f o r e i g n
investments. F u r t h e r m o r e , t h e d e f i n i t i o n was n o t s e l f - e x p l a n a t o r y or self-
s u f f i c i e n t , and the meaning o f t h e word " s t a t u s " was f a r f r o m b e i n g c l e a r .
lk. A s u g g e s t i o n was made t h a t t h e r i g h t o f a p e o p l e o r n a t i o n t o d e t e r m i n e i t s
" p o l i t i c a l s t a t u s " s h o u l d be w r i t t e n i n t h e a r t i c l e t o be i n c l u d e d i n t h e covenant
on c i v i l and p o l i t i c a l r i g h t s , and t h a t t h e r i g h t t o d e t e r m i n e i t s "economic,

57 E/CN-.+/SR. 252-258;
//-22, 22/Rev.l, 23/Rev.l, 25.
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s o c i a l and c u l t u r a l s t a t u s " i n t h e a r t i c l e t o he i n c l u d e d i n t h e covenant on

economic, s o c i a l and c u l t u r a l r i g h t s . However, t h i s s u g g e s t i o n was t h o u g h t t o he
based upon an a r t i f i c i a l d i s t i n c t i o n between p o l i t i c a l s t a t u s and economic,
s o c i a l and c u l t u r a l s t a t u s . Every people o r n a t i o n was o r s h o u l d be an i n t e g r a t e d
entity. A people o r n a t i o n t h a t c o u l d n o t f r e e l y determine i t s p o l i t i c a l s t a t u s
c o u l d h a r d l y d e t e r m i n e i t s economic, s o c i a l and c u l t u r a l s t a t u s and v i c e v e r s a .
15. Suggestions were made which w o u l d i n d i c a t e t h e substance o f the r i g h t
of s e l f - d e t e r m i n a t i o n i n a concrete form. For instance, the r i g h t o f s e l f -
d e t e r m i n a t i o n s h o u l d i n c l u d e t h e r i g h t o f every people o r n a t i o n " t o e s t a b l i s h an
independent S t a t e " , t o "choose i t s own f o r m o f government", t o "secede f r o m o r
u n i t e w i t h another people o r n a t i o n , " e t c . These s u g g e s t i o n s were n o t adopted,
f o r i t was t h o u g h t t h a t any enumeration o f t h e components o f t h e r i g h t o f s e l f -
d e t e r m i n a t i o n was l i k e l y t o be i n c o m p l e t e . A s t a t e m e n t o f t h e r i g h t i n an
a b s t r a c t f o r m , as i n t h e f i r s t paragraph o f t h e a r t i c l e , was t h o u g h t t o be
preferable.

Obligations o f a l l States^

16. Under paragraph 2 o f t h e a r t i c l e , a l l S t a t e s s h o u l d undertake two o b l i g a t i o n s :

" t o promote t h e r e a l i z a t i o n o f t h a t r i g h t /of self-determination/ i n a l l t h e i r
t e r r i t o r i e s , " and t o " r e s p e c t t h e maintenance o f t h a t r i g h t i n o t h e r S t a t e s . "
17. I t was proposed o r i g i n a l l y t h a t t h i s paragraph should set f o r t h the
o b l i g a t i o n o f S t a t e s , which were r e s p o n s i b l e f o r t h e a d m i n i s t r a t i o n o f n o n - s e l f -
g o v e r n i n g and t r u s t t e r r i t o r i e s , t o promote t h e r e a l i z a t i o n o f the r i g h t o f s e l f -
determination. The p r o p o s a l was amended t o i n c l u d e a l l S t a t e s , whether o r n o t
t h e y a d m i n i s t e r e d any n o n - s e l f - g o v e r n i n g o r t r u s t territories.
18. I t was g e n e r a l l y agreed t h a t a l l S t a t e s s h o u l d "promote" and " r e s p e c t " t h e
r i g h t o f s e l f - d e t e r m i n a t i o n , and t h a t t h e y s h o u l d do so " i n c o n f o r m i t y w i t h t h e
provisions o f the United Nations Charter." There were two q u a l i f y i n g clauses which
were n o t adopted: t h a t t h e S t a t e s s h o u l d promote t h e r i g h t o f s e l f - d e t e r m i n a t i o n
"in accordance w i t h c o n s t i t u t i o n a l processes" and " w i t h proper r e g a r d f o r t h e
r i g h t s o f o t h e r S t a t e s and p e o p l e s . " While t h e clause " i n accordance w i t h

57 7CN.VSR.252-258;
E/CN.k/L.21,23/Rev.1, 25, 25/Rev.l, 28/Rev.l-2, 29, JO, 31.
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c o n s t i t u t i o n a l processes" was i n t e n d e d t o mean t h a t t h e r i g h t o f s e l f - d e t e r m i n a t i o n

s h o u l d be promoted "by l e g a l and p e a c e f u l means," i t m i g h t become an insurmountable
o b s t a c l e t o t h e r e a l i z a t i o n o f t h a t r i g h t i f i t meant, f o r i n s t a n c e , t h a t , b e f o r e
t h e r i g h t was g r a n t e d t o a n o n - s e l f - g o v e r n i n g o r t r u s t t e r r i t o r y , t h e c o n s t i t u t i o n
o f t h e m e t r o p o l i t a n power had t o be amended. The c l a u s e " w i t h p r o p e r regard
f o r t h e r i g h t s o f o t h e r S t a t e s and p e o p l e s " was opposed on t h e grounds t h a t i t
p e r m i t t e d t h e e x e r c i s e o f a b a s i c r i g h t on t h e c o n d i t i o n t h a t a l l t h e r i g h t s o f
o t h e r S t a t e s and peoples - and p o s s i b l y secondary o r a c q u i r e d r i g h t s - were n o t
injured thereby.

Permanent s o v e r e i g n t y over n a t u r a l w e a l t h and r e s o u r c e s ^

19- The t h i r d paragraph r e a d : "The r i g h t o f peoples t o s e l f - d e t e r m i n a t i o n s h a l l

a l s o i n c l u d e permanent s o v e r e i g n t y over t h e i r n a t u r a l w e a l t h and r e s o u r c e s . I n no
case may a people be d e p r i v e d o f i t s own means o f s u b s i s t e n c e on t h e grounds o f
any r i g h t s t h a t may be claimed by o t h e r S t a t e s . "
20. A g a i n s t t h i s t e x t i t was suggested t h a t "permanent s o v e r e i g n t y " was n o t a
t e n a b l e concept as any S t a t e c o u l d v o l u n t a r i l y l i m i t i t s own s o v e r e i g n t y a t any
time. Furthermore, t h e p r o p o s i t i o n was c o n s i d e r e d dangerous i n t h a t i t would
s a n c t i o n u n w a r r a n t e d e x p r o p r i a t i o n o r c o n f i s c a t i o n o f f o r e i g n p r o p e r t y and w o u l d
s u b j e c t i n t e r n a t i o n a l agreements and arrangements t o u n i l a t e r a l r e n u n c i a t i o n .
21. On t h e o t h e r hand, i t was s t a t e d t h a t t h e r i g h t o f s e l f - d e t e r m i n a t i o n
c e r t a i n l y i n c l u d e d t h e s i m p l e and elementary p r i n c i p l e t h a t a n a t i o n o r people
s h o u l d be master o f i t s own n a t u r a l w e a l t h o r r e s o u r c e s . The p r o p o s a l , i t was
emphasized, was n o t i n t e n d e d t o f r i g h t e n o f f f o r e i g n i n v e s t m e n t b y a t h r e a t o f
e x p r o p r i a t i o n o r c o n f i s c a t i o n ; i t was i n t e n d e d r a t h e r t o warn a g a i n s t such
f o r e i g n e x p l o i t a t i o n as m i g h t r e s u l t i n d e p r i v i n g t h e l o c a l p o p u l a t i o n o f i t s own
means o f s u b s i s t e n c e .

6/ E/CN.tySR.256, 257;
E/CN.4/L.24;
GA ( I X ) , 3rd Com., 567th, 568th, 575th, 576th.
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Page 45

The p r o b l e m o f m i n o r i t i e s

22. A p r o p o s a l was made t h a t " t h e S t a t e s h a l l ensure t o n a t i o n a l m i n o r i t i e s t h e

r i g h t t o use t h e n a t i v e tongue and t o have t h e n a t i o n a l s c h o o l s , l i b r a r i e s ,
museums and o t h e r c u l t u r a l and e d u c a t i o n a l i n s t i t u t i o n s . " T h i s was n o t adopted.
One view was t h a t such a p r o p o s a l would r e t a r d t h e process o f a s s i m i l a t i o n o f
immigrants t o a new c o u n t r y and p r e v e n t t h e f o r m a t i o n o f a homogeneous s o c i e t y .
Another view was t h a t i t m i g h t encourage s e p a r a t i s t o r i r r e d e n t i s t movements and
m i g h t b r i n g about a m u l t i p l i c a t i o n o f b a r r i e r s and f r o n t i e r s , ( i t may be n o t e d
t h a t t h e r i g h t s o f m i n o r i t i e s a r e d e a l t w i t h i n a r t i c l e 25 o f t h e d r a f t covenant
on c i v i l and p o l i t i c a l r i g h t s ) .

DOCUMENTATION

Organ and Article

session Records o f d i s c u s s i o n Other documents number

CHR (V) ESC(lX), suppl.10, annex I

CHR ( V I ) E/CN.4/365, p a r t I I , H;
ESC ( X l ) , s u p p l . 5 , annex I I I .
GA (V) 3rd Com., 309th-311th mtgs. Annexes, a . i . 63, A/C.3/L.88
and R e v . l ; A/1559

CHR ( V I I ) E/CN.4/5l6; ESC ( X I I I ) ,

s u p p l . 9 , annex I V .

GA ( V I ) 3rd Com., 358th-372nd and Annexes, a . i . 29, A/C.3/-L.I86

397th-403rd mtgs. and A d d . l , 20k, 205, 205/Rev.l,
206, 209, 209/Rev.l, 216, 217,
217/Rev.l, 221, 222, 224, 225;
A/2112.

CHR (VIII) E/CN.4/SR.252-261 E/CN.4/649, 657, 662, 663; 1

E / C N . 4 / L . 2 1 , 22, 22/Rev.l,
23, 23/Rev.l, 2k, 25, 25/Rev.l,
27, 28, 28/Rev.l-2, 29, 30, 31;
ESC ( X I V ) , suppl, paras.20-91
and annex I .
CHR (X) E/CN/694/Add.2, 694/Add.2/
C o r r . l ( E n g . o n l y ) , 69U/Add.5,
694/Add.6
GA ( I X ) 3 r d Com. 562nd, 573rd and A/C.3/L.412 and 427. :

575th-580th mtgs.
77 E/CN.4/SR.252, 254, 256, 257; E/CN.4/L.21, 23-
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CHAPTER V

GENERAL PROVISIONS

( P a r t I I , A r t i c l e s 2-5, o f b o t h d r a f t c o v e n a n t s )

T a b l e o f Contents

Paragraphs

A r t i c l e 2 o f t h e d r a f t covenant on c i v i l and
p o l i t i c a l r i g h t s - General o b l i g a t i o n s o f S t a t e s 1-17
O b l i g a t i o n t o r e s p e c t and ensure c i v i l and
p o l i t i c a l rights without discrimination 3-6
O b l i g a t i o n t o adopt l e g i s l a t i v e o r o t h e r measures 7-12
O b l i g a t i o n t o ensure remedies 13-17
A r t i c l e 2 o f t h e d r a f t covenant on economic, s o c i a l and
c u l t u r a l r i g h t s - General o b l i g a t i o n s o f S t a t e s 18-30
A r t i c l e 3 o f b o t h d r a f t covenents - Equal r i g h t s o f men and
women 31-34

A r t i c l e 4 o f t h e d r a f t covenant on c i v i l and p o l i t i c a l
rights - Emergency powers 35-47
E x i s t e n c e o f p u b l i c emergency 38-41
Scope o f measures o f d e r o g a t i o n 42-44
Limitation on d e r o g a t i o n s 45
Notifications i n case o f d e r o g a t i o n s 46-47
A r t i c l e 4 o f t h e d r a f t covenant o n economic, s o c i a l and
c u l t u r a l r i g h t s - General l i m i t a t i o n s 48-52

A r t i c l e 5 o f b o t h d r a f t covenants - Saving c l a u s e s 53-62

Paragraph 1 55-59
Paragraph 2 6O-62
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ARTICLE 2 o f t h e d r a f t covenant
on c i v i l and p o l i t i c a l r i g h t s

General o b l i g a t i o n s o f S t a t e s

1. Each S t a t e P a r t y h e r e t o undertakes t o r e s p e c t and t o

ensure t o a l l i n d i v i d u a l s w i t h i n i t s t e r r i t o r y and s u b j e c t
t o i t s j u r i s d i c t i o n t h e r i g h t s r e c o g n i z e d i n t h i s Covenant,
w i t h o u t d i s t i n c t i o n o f any k i n d , such as r a c e , c o l o u r , sex,
language, r e l i g i o n , p o l i t i c a l o r o t h e r o p i n i o n , n a t i o n a l
or s o c i a l o r i g i n , p r o p e r t y , b i r t h or o t h e r s t a t u s .

2. Where not a l r e a d y p r o v i d e d f o r b y e x i s t i n g l e g i s l a t i v e
or o t h e r measures, each S t a t e undertakes t o t a k e t h e
necessary s t e p s , i n accordance w i t h i t s c o n s t i t u t i o n a l
processes and w i t h t h e p r o v i s i o n s o f t h i s Covenant, t o
adopt such l e g i s l a t i v e or o t h e r measures as may be necessary
t o g i v e e f f e c t t o t h e r i g h t s r e c o g n i z e d i n t h i s Covenant.

3. Each S t a t e P a r t y h e r e t o undertakes:

( a ) To ensure t h a t any p e r s o n whose r i g h t s or

freedoms as h e r e i n r e c o g n i z e d are v i o l a t e d s h a l l
have an e f f e c t i v e remedy, n o t w i t h s t a n d i n g t h a t
t h e v i o l a t i o n has been committed b y persons
a c t i n g i n an o f f i c i a l c a p a c i t y ;

( b ) To develop t h e p o s s i b i l i t i e s o f j u d i c i a l .
remedy and t o ensure t h a t any p e r s o n c l a i m i n g
such a remedy s h a l l have h i s r i g h t t h e r e t o
determined b y competent a u t h o r i t i e s , p o l i t i c a l ,
a d m i n i s t r a t i v e or j u d i c i a l ;

( c ) To ensure t h a t t h e competent a u t h o r i t i e s
s h a l l e n f o r c e such remedies when g r a n t e d .

1. T h i s a r t i c l e s e t s f o r t h t h e g e n e r a l o b l i g a t i o n s t o be undertaken by each
S t a t e which becomes a p a r t y t o t h e covenant. Paragraph 1 s t i p u l a t e s t h a t each
State p a r t y i s t o undertake t o r e s p e c t and ensure t o a l l persons s p e c i f i e d
t h e r e i n w i t h o u t any d i s t i n c t i o n t h e r i g h t s r e c o g n i z e d i n t h e covenant.
Paragraph 2 d e a l s w i t h t h e steps t o be u n d e r t a k e n by a S t a t e t o g i v e e f f e c t t o
the r i g h t s recognized i n t h e covenant. Paragraph 3 o b l i g a t e s each S t a t e p a r t y
t o ensure an e f f e c t i v e remedy t o any p e r s o n whose r i g h t s are v i o l a t e d .
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2. The i m p o r t a n c e o f a r t i c l e 2 f r o m t h e p o i n t o f v i e w o f i m p l e m e n t i n g t h e
covenant was s t r e s s e d . I n r e s o l u t i o n 421 (v) t h e General Assembly considered
" i t e s s e n t i a l t h a t t h e covenant should i n c l u d e p r o v i s i o n s r e n d e r i n g i t
o b l i g a t o r y f o r S t a t e s t o promote t h e i m p l e m e n t a t i o n o f t h e human r i g h t s and
f u n d a m e n t a l freedoms p r o c l a i m e d i n t h e covenant and t o t a k e t h e necessary s t e p s ,
i n c l u d i n g l e g i s l a t i o n , t o guarantee t o ' everyone t h e r e a l o p p o r t u n i t y o f
e n j o y i n g t h o s e r i g h t s and freedoms."

O b l i g a t i o n t o r e s p e c t and ensure c i v i l and p o l i t i c a l r i g h t s w i t h o u t

discrimination

3. I n accordance w i t h p a r a g r a p h 1 o f a r t i c l e 2, a S t a t e p a r t y would u n d e r t a k e
to r e s p e c t and ensure t h e r i g h t s r e c o g n i z e d i n t h e covenant, f i r s t , t o " a l l
i n d i v i d u a l s w i t h i n i t s t e r r i t o r y and s u b j e c t t o i t s j u r i s d i c t i o n " , and second,
to a l l such i n d i v i d u a l s " w i t h o u t d i s t i n c t i o n o f any k i n d , such as r a c e , c o l o u r ,
sex, language, r e l i g i o n , p o l i t i c a l o r o t h e r o p i n i o n , n a t i o n a l o r s o c i a l o r i g i n ,
property, b i r t h or other s t a t u s . "
4. There was seme d i s c u s s i o n on t h e d e s i r a b i l i t y o f r e t a i n i n g t h e words " w i t h i n
its territory". I t was t h o u g h t t h a t a S t a t e should n o t be r e l i e v e d o f i t s
o b l i g a t i o n s under t h e covenant t o persons who remained w i t h i n i t s j u r i s d i c t i o n
m e r e l y because t h e y were n o t w i t h i n i t s t e r r i t o r y . F o r example, S t a t e s p a r t i e s
would have t o r e c o g n i z e t h e r i g h t o f t h e i r n a t i o n a l s t o j o i n a s s o c i a t i o n s w i t h i n
t h e i r t e r r i t o r i e s even w h i l e t h e y were abroad. There might a l s o b e a
c o n t r a d i c t i o n between t h e o b l i g a t i o n l a i d down i n p a r a g r a p h 1 a n d , t h a t laid
down i n seme o f t h e o t h e r a r t i c l e s , p a r t i c u l a r l y a r t i c l e 12, p a r a g r a p h 2 ( b ) ,
w h i c h p r o v i d e d t h a t anyone should be f r e e t o e n t e r h i s own c o u n t r y . On t h e
o t h e r hand, i t was contended t h a t i t was n o t p o s s i b l e f o r a S t a t e t o p r o t e c t
t h e r i g h t s o f persons s u b j e c t t o i t s j u r i s d i c t i o n when t h e y were o u t s i d e i t s
t e r r i t o r y ; i n such cases, a c t i o n would be p o s s i b l e o n l y t h r o u g h d i p l o m a t i c
channels.
5- The n o n - d i s c r i m i n a t i o n c l a u s e o f p a r a g r a p h 1 f o l l o w s t h a t o f a r t i c l e 2
of t h e U n i v e r s a l D e c l a r a t i o n o f Human R i g h t s . ^ I t was t h o u g h t appropriate

1/ F o r t h e d i s c u s s i o n on t h e f o r m u l a t i o n o f t h e n o n - d i s c r i m i n a t i o n c l a u s e i n
a r t i c l e 2 o f t h e U n i v e r s a l D e c l a r a t i o n o f Human R i g h t s , see GA ( i l l / l )
l80th-l83rd mtgs; 3rd Com., ICOth-103rd and 176th-177th mtgs. See a l s o
t h e a n n o t a t i o n on a r t i c l e 24 o f t h e d r a f t covenant on c i v i l and p o l i t i c a l
rights.
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t o i n c l u d e t h i s n o n - d i s c r i m i n a t i o n c l a u s e i n a r t i c l e 2, which d e a l t w i t h t h e
general o b l i g a t i o n s o f the States p a r t i e s .

6. There was g e n e r a l agreement t h a t , n o t w i t h s t a n d i n g t h e p r o v i s i o n s o f

a r t i c l e 2, p a r a g r a p h 1, r e s t r i c t i o n s placed i n c e r t a i n substantive a r t i c l e s
o f p a r t I I I o f t h e covenant, such as a r t i c l e 23 on p o l i t i c a l r i g h t s w h i c h r e f e r s
t o "every c i t i z e n " , would a p p l y .

O b l i g a t i o n s t o adopt l e g i s l a t i v e o r o t h e r measures

7- There were d i f f e r e n c e s o f o p i n i o n c o n c e r n i n g t h e o b l i g a t i o n t o be assumed

b y a S t a t e t o g i v e e f f e c t t o t h e r i g h t s r e c o g n i z e d i n the covenant when
2/
r a t i f y i n g o r acceding t o t h e covenant.' Those opposed t o t h e p r e s e n t t e x t o f
paragraph 2 contended t h a t t h e g e n e r a l r u l e o f i n t e r n a t i o n a l l a w was t h a t
p r o v i s i o n s o f an i n t e r n a t i o n a l i n s t r u m e n t should be i n f o r c e i m m e d i a t e l y upon
ratification. The normal p r a c t i c e was t h a t a c c e s s i o n was e f f e c t e d o n l y a f t e r
o r s i m u l t a n e o u s l y w i t h t h e t a k i n g o f t h e necessary c o n s t i t u t i o n a l measures o f
execution. Consequently, t h e r e was no need f o r t h e p r o v i s i o n s o f paragraph 2,
w h i c h were e x c e p t i o n a l . A p r o p o s a l t h a t "every d e p o s i t o f i n s t r u m e n t o f
a c c e s s i o n s h a l l be accompanied b y a solemn d e c l a r a t i o n made b y t h e government
o f t h e S t a t e concerned, t h a t f u l l and complete e f f e c t i s g i v e n b y t h e l a w o f
t h e S t a t e t o t h e p r o v i s i o n s o f t h e covenant" was, however, r e j e c t e d .
8. On t h e o t h e r hand, t h e v i e w was expressed t h a t t h e a d o p t i o n o f l e g i s l a t i v e
or o t h e r measures was n o t a c o n d i t i o n precedent t o a State b i n d i n g i t s e l f
i n t e r n a t i o n a l l y , u n l e s s t h e t r e a t y concerned so p r o v i d e d . A S t a t e might
p r o p e r l y undertake an i n t e r n a t i o n a l o b l i g a t i o n and t h e n s u b s e q u e n t l y t a k e t h e
necessary l e g i s l a t i v e o r o t h e r measures t o ensure t h e f u l f i l m e n t o f t h o s e
obligations. I t was observed t h a t t h i s view was supported e x p r e s s l y o r b y
i m p l i c a t i o n i n s e v e r a l cases b y t h e Permanent Court o f I n t e r n a t i o n a l J u s t i c e .

2/ A t t e n t i o n may be drawn t o an o p i n i o n on t h e a d a p t a t i o n o f m u n i c i p a l l a w
t o i n t e r n a t i o n a l c o n v e n t i o n s u b m i t t e d b y t h e S e c r e t a r y - G e n e r a l i n document
E/CN.4/II6 a t t h e r e q u e s t o f t h e D r a f t i n g Committee o f t h e Commission on
Human R i g h t s .
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Thus, t h e r e was no i n c o n s i s t e n c y between i n t e r n a t i o n a l l a w and t h e p r o v i s i o n s

o f p a r a g r a p h 2. A t t h e same t i m e t h e need f o r p a r a g r a p h 2 arose because i t was
e s s e n t i a l t o p e r m i t a c e r t a i n degree o f e l a s t i c i t y t o t h e o b l i g a t i o n s imposed on
S t a t e s b y t h e covenant, s i n c e a l l S t a t e s would n o t be i n a p o s i t i o n immediately
t o t a k e t h e necessary l e g i s l a t i v e o r o t h e r measures f o r t h e i m p l e m e n t a t i o n o f
i t s provisions. The covenant, i t was p o i n t e d o u t , u n l i k e o r d i n a r y c o n v e n t i o n s ,
concerned a v a s t f i e l d so t h a t no S t a t e c o u l d c l a i m i t s l e g i s l a t i o n t o be i n
complete harmony w i t h a l l i t s p r o v i s i o n s . Paragraph 2 would a l s o t a k e into
account t h e c o n s t i t u t i o n a l processes o f v a r i o u s c o u n t r i e s w h i c h d i f f e r e d as
r e g a r d s t h e i m p l i c a t i o n s o f an a c t o f r a t i f i c a t i o n o f an i n t e r n a t i o n a l i n s t r u m e n t .
9. S t a t e s should, t h e r e f o r e , undertake t o take t h e necessary steps, i n
accordance w i t h t h e i r c o n s t i t u t i o n a l processes and w i t h t h e p r o v i s i o n s o f t h e
covenant, t o adopt such l e g i s l a t i v e o r o t h e r measures as m i g h t be necessary t o
give e f f e c t t o t h e r i g h t s recognized i n t h e covenant, where such measures had
n o t a l r e a d y been p r o v i d e d f o r . Suggestions were p u t f o r w a r d f o r s e t t i n g seme
t i m e l i m i t on t h e a d o p t i o n b y S t a t e s o f these measures. D e f i n i t e time l i m i t s ,
such as one o r t h r e e y e a r s , were found unacceptable because o f t h e d i f f i c u l t y
o f f o r e s e e i n g t h e e x a c t p e r i o d needed t o g i v e e f f e c t t o t h e p r o v i s i o n s o f t h e
covenant. I t was a l s o c o n s i d e r e d t h a t t o a l l o w each S t a t e t o f i x i t s own t i m e
l i m i t i n i t s i n s t r u m e n t o f r a t i f i c a t i o n would l e a v e t o o much freedom t o t h e
States. I t was decided t h a t S t a t e s should adopt l e g i s l a t i v e o r o t h e r measures
" w i t h i n a reasonable t i m e " , s i n c e t h a t would p r o v i d e a s u i t a b l e check t o
excessive delays. The e x p r e s s i o n " w i t h i n a reasonable t i m e " was, however,
subsequently deleted. L a t e r , i t was decided t o i n c o r p o r a t e i n a r t i c l e 49 a
3/
p r o v i s i o n t o t h e e f f e c t t h a t S t a t e s p a r t i e s undertake t o submit r e p o r t s on
l e g i s l a t i v e o r o t h e r measures w h i c h g i v e e f f e c t t o t h e r i g h t s r e c o g n i z e d i n
t h e covenant.
10. The p r o v i s i o n s o f p a r a g r a p h 2 were c r i t i c i z e d on t h e grounds t h a t t h e y
i n t r o d u c e d i n t o t h e covenant on c i v i l and p o l i t i c a l r i g h t s t h e n o t i o n o f
progressiveness and t h a t they m i g h t r e s u l t i n t h e a c t o f r a t i f i c a t i o n b e i n g no

3/ See under a r t i c l e 49.

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more t h a n a vague p r o m i s e t o he f u l f i l e d b y some u n s p e c i f i e d d a t e . I t was

c o n s i d e r e d t h a t t h e i d e a o f p r o g r e s s i v e n e s s i m p l i c i t i n p a r a g r a p h 2 and i n
a r t i c l e +9 was most i n a p p r o p r i a t e f o r c i v i l and p o l i t i c a l r i g h t s w h i c h were
capable o f immediate i m p l e m e n t a t i o n . I t m i g h t be i m p o s s i b l e t o d e t e r m i n e a t
any t i m e which o f t h e p r o v i s i o n s o f t h e covenant were e n f o r c e d i n t h e t e r r i t o r y
o f any S t a t e p a r t y . Paragraph 2 m i g h t a l s o g i v e r i s e t o unequal o b l i g a t i o n s
between t h e S t a t e s p a r t i e s ; some S t a t e s would t a k e t h e necessary measures
i m m e d i a t e l y , t o b r i n g t h e i r domestic l a w i n t o c o n f o r m i t y w i t h t h e covenant,
w h i l e o t h e r s m i g h t n o t . Even i f t h e r e q u i r e m e n t o f "reasonable t i m e " was
i n c l u d e d , i t would be i m p o s s i b l e t o f o r e c a s t w i t h any degree o f c e r t a i n t y what
a r e a s o n a b l e p e r i o d o f t i m e would be I n a p a r t i c u l a r i n s t a n c e . I t was
r e c o g n i z e d t h a t d i s p a r i t i e s between t h e l e g i s l a t i o n o f some S t a t e s and t h e
p r o v i s i o n s o f t h e covenant m i g h t p r e s e n t d i f f i c u l t i e s , b u t i t was suggested
t h a t t h e b e s t way t o meet t h a t p r o b l e m was b y i n c l u d i n g i n t h e covenant an
a r t i c l e permitting reservations w i t h i n appropriate l i m i t s .

11. I t was c o n s i d e r e d b y o t h e r s t h a t p a r a g r a p h 2 had t h e advantage, u n l i k e a

system o f r e s e r v a t i o n s , o f n o t p e r p e t u a t i n g t h e l a w o f any S t a t e t h a t d i d n o t
conform t o t h e o b l i g a t i o n s s e t o u t i n t h e covenant. The q u e s t i o n o f
r e s e r v a t i o n s s h o u l d be c o n s i d e r e d s e p a r a t e l y , and i t s h o u l d n o t be confused w i t h
t h e o b l i g a t i o n w h i c h S t a t e s s h o u l d assume t o t a k e s t e p s t o adopt t h e necessary
l e g i s l a t i v e o r o t h e r measures t o g i v e e f f e c t t o t h e p r o v i s i o n s o f t h e
covenant.^ While i t was r e g r e t t a b l e t h a t t h e words " w i t h i n a r e a s o n a b l e t i m e "
had been d e l e t e d , i t was n e v e r t h e l e s s t o be r e c o g n i z e d t h a t under a r t i c l e k-S
r e p o r t s on a c t i o n t a k e n b y S t a t e s p u r s u a n t t o a r t i c l e 2, p a r a g r a p h 2, would be
r e q u i r e d , and t h a t would serve as a c u r b on e x c e s s i v e d e l a y s and on any abuse
t o which paragraph 2 might l e n d itself.
12. A p r o p o s a l t o i n s e r t i n p a r a g r a p h 2 t h e phrase, " t h e p r o v i s i o n s o f t h i s
covenant s h a l l n o t themselves become e f f e c t i v e as domestic l a w , " was r e j e c t e d .
I n f a v o u r o f t h i s p r o p o s a l , i t was contended t h a t i n some S t a t e s a r a t i f i e d
t r e a t y became t h e supreme l a w o f t h e c o u n t r y i n accordance w i t h i t s constitution.

hj On t h e q u e s t i o n o f r e s e r v a t i o n s , see Chapter X, paragraphs 25-39 below.

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I n o t h e r s , a t r e a t y was n o t a u t o m a t i c a l l y i n c o r p o r a t e d i n t h e n a t i o n a l
l e g i s l a t i o n , h u t i t s p r o v i s i o n s had t o be i n c l u d e d i n l e g i s l a t i o n i n o r d e r t h a t
t h e y m i g h t become e n f o r c e a b l e w i t h i n t h e c o u n t r y . The t e x t proposed would
p l a c e a l l c o u n t r i e s on an e q u a l f o o t i n g . I t was, however, f e l t t h a t t h e p r o p o s a l
r e l a t e d t o t h e c o n s t i t u t i o n a l laws and p r a c t i c e s o f S t a t e s , and t h e r e was no
r e a s o n t o i n c l u d e p r o v i s i o n s i n t h e covenant w h i c h m i g h t i n t e r f e r e w i t h t h e
a p p l i c a t i o n o f c o n s t i t u t i o n a l processes. Paragraph 2, moreover, made i t c l e a r
t h a t t h e o b l i g a t i o n t o g i v e e f f e c t t o t h e r i g h t s r e c o g n i z e d i n t h e covenant
would be c a r r i e d o u t b y S t a t e s t h r o u g h t h e a d o p t i o n o f l e g i s l a t i v e o r o t h e r
measures.

O b l i g a t i o n t o ensure remedies

13. S t a t e s p a r t i e s a r e t o u n d e r t a k e t h r e e s p e c i f i c o b l i g a t i o n s , l a i d down i n
p a r a g r a p h 3, t o ensure remedies t o any p e r s o n whose r i g h t s a r e v i o l a t e d . First,
t h e y a r e t o ensure t h a t any p e r s o n whose r i g h t s o r freedoms as r e c o g n i z e d i n
t h e covenant a r e v i o l a t e d " s h a l l have an e f f e c t i v e remedy, n o t w i t h s t a n d i n g t h a t
t h e v i o l a t i o n has been committed b y persons a c t i n g i n an o f f i c i a l capacity."
Secondly, t h e y a r e t o ensure t h a t "any p e r s o n c l a i m i n g such a remedy s h a l l have
h i s r i g h t t h e r e t o d e t e r m i n e d b y competent a u t h o r i t i e s , p o l i t i c a l , administrative
or j u d i c i a l . " T h i r d l y , t h e y a r e t o ensure t h a t t h e "competent a u t h o r i t i e s shall
e n f o r c e such remedies when g r a n t e d . " I t i s also provided that t h e States p a r t i e s
a r e t o u n d e r t a k e " t o develop t h e p o s s i b i l i t i e s o f j u d i c i a l remedy."
Ik. An o p i n i o n was expressed t h a t t h e r e was no need t o s p e c i f y t h e o b l i g a t i o n s
o f S t a t e s p a r t i e s i n t h e event o f a v i o l a t i o n o f t h e covenant, s i n c e i t was
o b v i o u s t h a t i f t h e S t a t e s u n d e r t o o k t o a b i d e b y t h e covenant, t h e y would have
t o p r o v i d e f o r e f f e c t i v e remedies a g a i n s t i n f r i n g e m e n t s . I t was a l s o l i k e l y
t h a t p r o v i s i o n s o f t h a t k i n d m i g h t be t o o b r o a d and sweeping t o be o f much
value. The v i e w was accepted, however, t h a t t h e p r o p e r enforcement o f t h e
p r o v i s i o n s o f t h e covenant depended on guarantees o f t h e i n d i v i d u a l ' s r i g h t s
a g a i n s t abuse, w h i c h comprised t h e f o l l o w i n g elements: the possession o f a
l e g a l remedy, t h e g r a n t i n g o f t h i s remedy b y n a t i o n a l a u t h o r i t i e s and t h e
enforcement o f t h e remedy b y t h e competent authorities.
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15. A l t h c u g h an o p i n i o n was expressed t h a t t h e s t r i c t application of

p a r a g r a p h 3 ( a ) i n cases when o f f i c i a l s had a c t e d i n good f a i t h m i g h t seriously
hamper t h e course o f j u s t i c e and administration as a whole, i t was argued t h a t
it should he made c l e a r t h a t no one could avoid r e s p o n s i b i l i t y f o r v i o l a t i n g a
person's freedom, e s p e c i a l l y by claiming t h a t he was a c t i n g on h i g h e r a u t h o r i t y .
Some were even o f t h e v i e w t h a t t h e v i c t i m o f a v i o l a t i o n m i g h t n o t always be
i n a p o s i t i o n t o a c t and t h a t i t would be b e t t e r i f governments were s p e c i f i c a l l y
held responsible f o r b r i n g i n g v i o l a t o r s s w i f t l y t o j u s t i c e . However, a
p r o p o s a l t h a t " v i o l a t o r s s h a l l s w i f t l y be b r o u g h t t o t h e law, e s p e c i a l l y when
t h e y are p u b l i c o f f i c i a l s " was rejected.
16. Paragraph 3 ( b ) p r o v i d e s t h a t any p e r s o n c l a i m i n g a remedy under a r t i c l e 2
i s t o have h i s r i g h t t h e r e t o d e t e r m i n e d by competent a u t h o r i t i e s "political,
administrative or j u d i c i a l . " I n the opinion o f some, a l l remedy should be
p r o v i d e d t h r o u g h r e c o u r s e t o independent j u d i c i a l a u t h o r i t i e s , w h i c h would
include, where t h a t was t h e case, a d m i n i s t r a t i v e tribunals. I t was considered
p a r t i c u l a r l y undesirable t h a t a p e r s o n whose freedoms had been v i o l a t e d , i n
a l l p r o b a b i l i t y by t h e p o l i t i c a l a u t h o r i t i e s o f t h e S t a t e , s h o u l d have h i s r i g h t
t o a remedy d e t e r m i n e d by a p o l i t i c a l organ, s i n c e t h e v e r y same organ t h a t had
v i o l a t e d h i s r i g h t m i g h t be t h e one t h a t was adjudicating on h i s c l a i m f o r a
remedy. But i t was contended t h a t t h e o m i s s i o n o f r e f e r e n c e t o p o l i t i c a l
a u t h o r i t i e s would p r e c l u d e the g r a n t i n g o f remedies by the l e g i s l a t u r e or the
e x e c u t i v e i n cases where t h e y might be the o n l y , or t h e most e f f e c t i v e , agencies
f o r t h a t purpose. At t h e same t i m e , i t was observed t h a t , w h i l e j u d i c i a l remedy
was preferable, i t m i g h t be i m p o s s i b l e t o impose upon S t a t e s t h e immediate
o b l i g a t i o n t o p r o v i d e such remedies. I n o r d e r t o meet t h a t o b j e c t i v e , however,
i t was d e c i d e d t o p r o v i d e , i n p a r a g r a p h 3 ( h ) , t h a t each S t a t e p a r t y u n d e r t a k e
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/
" t o d e v e l o p t h e p o s s i b i l i t i e s o f j u d i c i a l remedy. "- Another o p i n i o n was t h a t
p a r a g r a p h 3 ( h ) f a i l e d t o p r o v i d e any guarantee f o r t h e independence of the
a u t h o r i t i e s w h i c h m i g h t b e empowered t o d e c i d e whether a remedy s h o u l d be g r a n t e d .
17. The r e f e r e n c e i n p a r a g r a p h 3 ( c ) t o "competent a u t h o r i t i e s " was t h o u g h t t o
be more comprehensive and a p p o s i t e t h a n a r e f e r e n c e t o " p o l i c e and e x e c u t i v e
authorities."

DOCUMENTATION

Organ and Records o f Article

session discussion Other documents number
DC (I) E/CN.4/AC.I/SR.3, 11 E/CN.4/AC.l/4,art.2, 11; E/CN.4/21,
annex B, a r t . 2, annex G

CHR ( I I ) E/CN.4/SRAl; E/CN.4/37, 51, 56, 73, 79; ESC ( v i ) ,

E/CN.4/AC.3/SR.8 s u p p l . 1, a r t . 2 2

DC(II) E/CN.4/AC-I/SR.33, E/CN.4/AC.1/19,26; E/CN.4/95,

43 annex B, a r t . 2 2

CHR (III) E/CN.U/82, 82/Rev.l, 82/Add.2, k,

7, 8 and 12, 85; ESC ( V I I ) , suppl.2,
annex 8, a r t . 2 2

ESC (VII) E/C.2/94

CHR (V) E/CN.U/SR.I25 ' E/CN.4/224, 232, 258, 264, 318,

319, 322; ESC (IX), s u p p l . 10,
annex I , a r t . 2, and annex I I

5/ The p r e s e n t t e x t o f p a r a g r a p h 3 ( b ) i s somewhat ambiguous. The p a r a g r a p h

reads: " t o develop t h e p o s s i b i l i t i e s o f j u d i c i a l remedy and t o ensure t h a t
any p e r s o n c l a i m i n g such a remedy s h a l l have h i s r i g h t t h e r e t o d e t e r m i n e d
b y competent a u t h o r i t i e s , p o l i t i c a l , a d m i n i s t r a t i v e o r j u d i c i a l . " The
o r i g i n a l t e x t d i d n o t i n c l u d e t h e phrase " t o d e v e l o p t h e p o s s i b i l i t i e s o f
j u d i c i a l remedy", and t h e words "such a remedy" c l e a r l y r e f e r r e d t o t h e
" e f f e c t i v e remedy" mentioned i n p a r a g r a p h 3 ( a ) , b u t i n t h e p r e s e n t t e x t
t h e words "such a remedy" m i g h t be c o n s t r u e d as r e f e r r i n g t o " j u d i c i a l
remedy". I t i s suggested, t h e r e f o r e , t h a t t h e o r d e r o f t h e two c l a u s e s
o f t h i s p a r a g r a p h " t o d e v e l o p . . . " and " t o ensure..." m i g h t b e r e v e r s e d so
t h a t what each S t a t e p a r t y undertakes t o ensure i m m e d i a t e l y would precede
'what i t u n d e r t a k e s t o develop i n t h e f u t u r e .
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DOCUMENTATION
(continued)

Organ and Records o f Article

session discussion Other documents number
ESC ( X ) E/C.2/2/241

CHR ( V I ) E/CN /SR. 138, 19, E/CN.4/353/Add.1-3, 6, 8 and 10;

194, I95, 199 65, 374, 384, 495, WGO/4, 7, 8;
ESC ( X I ) , s u p p l . 5, annex I , a r t . 1,
and annex I I

ESC ( X I ) E/AC.7/SR.147-1^9, E/L.68, p a r a s . 14-22, E/C.2/254/Add.l,

151, 153 259/Add.l 1

GA ( V ) 317th mtg; 3rd Com., Annexes, a . i . 63, A/1559, para.26 and

288th-291st, 300th- /./534, p a r a s . 11-12 1
301st and 314th mtgs.

CHR ( V I I ) E/CN.4/515/Add.1, 2, 6, 12, 13,

515/Add.2/Corr.l, 528, p a r a s . 58-62
and 67-77, 552, 641, p a r a s . 51, 53
and annex I I , 628, NGO/21, 25;
ESC ( X I I l ) , s u p p l . 9, annex I ,
a r t . 1, and annex I I I A 1

GA ( V I ) 3rd Com., 366th,

367th mtgs. 1

CHR (VIII) E/CN.h/SR.28, 329 E/CN.4/528/Add.1, p a r a s . 40-49,

660, L.129, 138, l o i , NGO/36, 39;
ESC ( X I V ) , s u p p l . 4, p a r a s . 269-276,
annex I B, a r t . 2 1

ESC ( X I V ) 665th mtg.

CHR ( I X ) E/CN.4/674, p a r a s . 22, 26-29 2

CHR ( X ) E/CN.4/694/Add.2, 702, No. X I I I

GA ( X ) 3rd Com. 562nd,

564th-567th, 571st-
573rd, 575th and
580th mtgs.
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ARTICLE 2- o f t h e d r a f t covenant on economic,

s o c i a l and c u l t u r a l r i g h t s

General o b l i g a t i o n s o f S t a t e s

1. Each S t a t e P a r t y h e r e t o undertakes t o t a k e s t e p s ,
i n d i v i d u a l l y and t h r o u g h i n t e r n a t i o n a l c o - o p e r a t i o n , t o
t h e maximum o f i t s a v a i l a b l e r e s o u r c e s , w i t h a v i e w t o
achieving progressively t h e f u l l r e a l i z a t i o n of the r i g h t s
r e c o g n i z e d i n t h i s Covenant b y l e g i s l a t i v e as w e l l as b y
o t h e r means.

2. The S t a t e P a r t i e s h e r e t o u n d e r t a k e t o guarantee t h a t
t h e r i g h t s e n u n c i a t e d i n t h i s Covenant w i l l be e x e r c i s e d
w i t h o u t d i s t i n c t i o n of, any k i n d , such as r a c e , c o l o u r ,
sex, language, r e l i g i o n , p o l i t i c a l or o t h e r o p i n i o n ,
n a t i o n a l or s o c i a l o r i g i n , p r o p e r t y , b i r t h or other s t a t u s .

18. There were s e v e r a l schools o f t h o u g h t on t h e d r a f t i n g o f p r o v i s i o n s

c o v e r n i n g t h e o b l i g a t i o n s o f S t a t e s f o r i m p l e m e n t i n g , on t h e n a t i o n a l l e v e l ,
t h e economic, s o c i a l and c u l t u r a l r i g h t s t r e a t e d i n t h e covenant.
19. One v i e w was t h a t each a r t i c l e should s p e c i f y i n d e t a i l t h e steps which
S t a t e s p a r t i e s s h o u l d t a k e t o implement t h e r i g h t r e c o g n i z e d i n t h e a r t i c l e .
The p a r t i c u l a r steps t o be t a k e n would be e l a b o r a t e d and would v a r y a c c o r d i n g
t o t h e r i g h t concerned. The c l a i m was made t h a t t h e o n l y e f f e c t i v e way o f
i m p l e m e n t i n g t h e covenant was t o p l a c e such o b l i g a t i o n s on S t a t e s .
20. The o p i n i o n was a l s o expressed t h a t s i n c e a l l c a t e g o r i e s o f r i g h t s were o f
e q u a l i m p o r t a n c e , S t a t e s c o u l d and should assume e q u a l o b l i g a t i o n s f o r t h e i r
implementation. I t was proposed t h a t o b l i g a t i o n s s i m i l a r t o t h o s e l a i d down i n
a r t i c l e 2 o f t h e d r a f t covenant on c i v i l and p o l i t i c a l r i g h t s should be w r i t t e n
i n t o t h e covenant on economic, s o c i a l and c u l t u r a l r i g h t s .
21. A n o t h e r v i e w was t h a t i t would be r e a l i s t i c t o l i m i t t h e terms o f each
i n d i v i d u a l a r t i c l e t o a r e c o g n i t i o n o f t h e p a r t i c u l a r r i g h t b y t h e S t a t e and
t o add an " u m b r e l l a " a r t i c l e imposing a g e n e r a l o b l i g a t i o n on S t a t e s which
would be a p p l i c a b l e t o a l l t h e r i g h t s r e c o g n i z e d i n t h e covenant. I n view o f
t h e n a t u r e o f economic, s o c i a l and c u l t u r a l r i g h t s , and t h e r e l a t i o n s h i p
between t h e r e a l i z a t i o n o f those r i g h t s and t h e economic and s o c i a l c o n d i t i o n s
o f t h e c o u n t r i e s concerned, however, i t would b e u n r e a l i s t i c t o r e q u i r e each
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S t a t e p a r t y t o t h e covenant t o do more t h a n "undertake t o t a k e s t e p s " , " t o t h e

maximum o f i t s a v a i l a b l e r e s o u r c e s " , w i t h a v i e w t o " a c h i e v i n g p r o g r e s s i v e l y "
t h e f u l l r e a l i z a t i o n o f t h e r i g h t s r e c o g n i z e d i n t h e covenant.
22. The v i e w p r e v a i l e d t h a t t h e r e should he a g e n e r a l a r t i c l e ( a r t i c l e 2)
c o n t a i n i n g what was f e l t t o he t h e f i r m e s t commitment w h i c h c o u l d r e a s o n a b l y
be undertaken i n r e l a t i o n t o a l l t h e r i g h t s t r e a t e d i n t h e covenant, b u t t h a t
i t s i n c l u s i o n would n o t p r e v e n t t h e e l a b o r a t i o n o f what t h e o b l i g a t i o n o f t h e
g e n e r a l a r t i c l e would s i g n i f y i n r e l a t i o n t o any s e l e c t e d r i g h t , o r even t h e
i m p o s i t i o n o f s t r i c t e r o b l i g a t i o n s i n connexion w i t h such a r i g h t . A r t i c l e 6,
paragraph 2, a r t i c l e 13, p a r a g r a p h 2, and a r t i c l e l 6 , p a r a g r a p h 2, thus
e l a b o r a t e upon t h e o b l i g a t i o n o f a r t i c l e 2 i n r e l a t i o n t o , r e s p e c t i v e l y , t h e
r i g h t t o work, t h e r i g h t t o h e a l t h and r i g h t s r e l a t i n g t o c u l t u r e and s c i e n c e ,
w h i l e separate and a d d i t i o n a l o b l i g a t i o n s a r e i n c l u d e d i n a r t i c l e 8 on t r a d e
u n i o n r i g h t s , a r t i c l e Ik, p a r a g r a p h 3 r e l a t i n g t o respect f o r c e r t a i n r i g h t s
o f p a r e n t s and g u a r d i a n s i n r e l a t i o n t o t h e e d u c a t i o n o f t h e i r c h i l d r e n o r wards,
a r t i c l e 15 on a p l a n f o r i m p l e m e n t i n g compulsory p r i m a r y e d u c a t i o n and
a r t i c l e l 6 , paragraph 3, on r e s p e c t f o r t h e freedom i n d i s p e n s a b l e f o r s c i e n t i f i c
r e s e a r c h and c r e a t i v e a c t i v i t y .
23. Paragraph 1 o f a r t i c l e 2 was c r i t i c i s e d on t h e grounds t h a t i t p r o v i d e d t o o
many l o o p h o l e s f o r S t a t e s p a r t i e s w i s h i n g t o evade t h e i r o b l i g a t i o n s : t o u n d e r t a k e
" t o t a k e s t e p s " f o r t h e r e a l i z a t i o n o f r i g h t s was n o t t o guarantee t h o s e rights;
secondly, i f such steps were o n l y t a k e n b y a S t a t e " t o t h e maximum o f i t s
a v a i l a b l e r e s o u r c e s " , l a c k o f r e s o u r c e s c o u l d always be p l e a d e d ; t h i r d l y , t h e
commitment t o achieve t h e r e a l i z a t i o n o f t h e r i g h t s " p r o g r e s s i v e l y " p e r m i t t e d
i n d e f i n i t e d e l a y s and was i n any case n o t necessary t o safeguard t h e p o s i t i o n
o f S t a t e s unable t o implement r i g h t s immediately.
2k. On t h e o t h e r hand, i t was observed t h a t t h e enjoyment o f economic, s o c i a l
and c u l t u r a l r i g h t s depended i n p a r t upon a v a i l a b l e r e s o u r c e s and upon domestic
and i n t e r n a t i o n a l economic and s o c i a l c o n d i t i o n s over which t h e S t a t e e x e r c i s e d
o n l y i n c o m p l e t e c o n t r o l and w h i c h n o t o n l y v a r i e d f r o m c o u n t r y t o c o u n t r y b u t
were a l s o l i a b l e t o sudden change. I t was argued t h a t c o u n t r i e s c o u l d n o t
p r o g r e s s f a s t e r t h a n such r e s o u r c e s and c o n d i t i o n s would a l l o w and t h a t t h e use
o f t h e t e r m " p r o g r e s s i v e l y " was p a r t i c u l a r l y v a l u a b l e t o under-developed
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countries. I t was a l s o c l a i m e d t h a t t h e use o f t h e word " p r o g r e s s i v e l y " i n

f a c t p l a c e d upon s i g n a t o r i e s a d u t y t o achieve ever h i g h e r and h i g h e r l e v e l s
of f u l f i l m e n t of r i g h t s . I t was p o i n t e d o u t a l s o t h a t t h e t e x t gave due
r e c o g n i t i o n t o t h e need f o r i n t e r n a t i o n a l f i n a n c i a l and t e c h n i c a l a s s i s t a n c e
and c o - o p e r a t i o n i n p r o v i d i n g t h e h a s i s f o r t h e r e a l i z a t i o n o f economic, s o c i a l
and c u l t u r a l r i g h t s , and t h a t t h e r e f e r e n c e t o " a v a i l a b l e r e s o u r c e s " contemplated
n o t o n l y t h e n a t i o n a l r e s o u r c e s o f a c o u n t r y h u t a l s o t h e r e s o u r c e s which i t
m i g h t r e c e i v e f r o m abroad.^
25. Another argument i n f a v o u r o f t h e s o l u t i o n adopted was t h a t t h e a r t i c l e s on
economic, s o c i a l and c u l t u r a l r i g h t s should be s h o r t and g e n e r a l i n n a t u r e ,
l e a v i n g i t t o t h e s p e c i a l i z e d agencies t o e l a b o r a t e more d e t a i l e d i n t e r n a t i o n a l
instruments. I n an i n s t r u m e n t c o n s i s t i n g m a i n l y o f such s h o r t g e n e r a l s t a t e m e n t s ,
however, t h e s e t t i n g o f f i x e d and p r e c i s e standards f o r many economic, s o c i a l o r
c u l t u r a l r i g h t s was f e l t b y some n o t t o be f e a s i b l e . The r e s u l t has been t h e
use o f phrases such as " j u s t and f a v o u r a b l e c o n d i t i o n s o f work", " f a i r wages",
"a decent l i v i n g " and "reasonable l i m i t a t i o n o f w o r k i n g h o u r s " i n a r t i c l e 7>
"adequate f o o d , c l o t h i n g and h o u s i n g " i n a r t i c l e 11, "an adequate s t a n d a r d o f
l i v i n g " i n a r t i c l e 12 and " t h e h i g h e s t a t t a i n a b l e s t a n d a r d o f h e a l t h " i n
a r t i c l e 13. The r e q u i r e m e n t o f c o n t i n u o u s p r o g r e s s i s s p e c i f i c a l l y r e f l e c t e d
i n " t h e c o n t i n u o u s improvement o f l i v i n g c o n d i t i o n s " i n a r t i c l e 12 and " t h e
r e d u c t i o n o f i n f a n t m o r t a l i t y " and "the improvement o f n u t r i t i o n , housing,
s a n i t a t i o n , r e c r e a t i o n , economic and w o r k i n g c o n d i t i o n s and o t h e r aspects o f
environmental hygiene" i n a r t i c l e 13.
26. A r t i c l e 2, p a r a g r a p h 1, must a l s o be c o n s i d e r e d i n c o n j u n c t i o n w i t h
p a r t I V o f t h e d r a f t covenant on economic, s o c i a l and c u l t u r a l r i g h t s , which
p r o v i d e s , n o t f o r a p r o c e d u r e o f e x a m i n a t i o n o f c o m p l a i n t s o f non-observance
o f f i x e d and p r e c i s e standards r e l a t i n g t o p a r t i c u l a r r i g h t s , b u t f o r a system
f o r t h e submission and e x a m i n a t i o n o f p e r i o d i c r e p o r t s on p r o g r e s s made i n
a c h i e v i n g t h e observance of r i g h t s . A t t e n t i o n i s a l s o drawn t o t h e p r o v i s i o n

6/ Compare a r t i c l e 23 o f t h e d r a f t covenant on economic, s o c i a l and cultural

r i g h t s and t h e comment t h e r e o n (Chapter I X ) .
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o f a r t i c l e 18, p a r a g r a p h 2, o f t h e d r a f t covenant t h a t r e p o r t s o f S t a t e s p a r t i e s
may i n d i c a t e f a c t o r s and d i f f i c u l t i e s a f f e c t i n g t h e degree o f f u l f i l m e n t o f
o b l i g a t i o n s under t h e covenant.
27. The i n c l u s i o n o f p a r a g r a p h 2 i n A r t i c l e 2 r e f l e c t s t h e p r e v a l e n c e o f t h e
v i e w t h a t , whatever t h e l e v e l reached i n t h e r e a l i z a t i o n o f r i g h t s i n a c o u n t r y
a t any g i v e n t i m e , t h e b e n e f i t s t h e r e o f would be accorded t o a l l e q u a l l y . The
p a r a g r a p h was opposed on t h e grounds t h a t i t would be u n r e a l i s t i c f o r S t a t e s t o
u n d e r t a k e such a g u a r a n t e e ; f o r i n s t a n c e , e q u a l i t y o f p a y between t h e sexes
m i g h t b e i m p o s s i b l e t o a c h i e v e i m m e d i a t e l y i n some c o u n t r i e s .
28. A recommendation t o add " l e g i t i m a c y " a f t e r " b i r t h " was n o t adopted; i t was
f e l t t h a t t h e words " b i r t h o r o t h e r s t a t u s " would p r o t e c t t h e p o s i t i o n o f
persons b o r n o u t o f wedlock.
29. The p a r a g r a p h was i n t e i . _ j d t o a p p l y t o a l l t h e r i g h t s e n u n c i a t e d i n t h e
covenant, i n c l u d i n g t h o s e i n r e l a t i o n t o w h i c h t h e above-mentioned additional
and s e p a r a t e o b l i g a t i o n s were l a i d down.
30. The q u e s t i o n was r a i s e d whether i t would b e d e s i r a b l e t o add t o t h e covenant
a p r o v i s i o n t o ensure t o t h e i n d i v i d u a l a domestic remedy f o r t h e enforcement i n
p a r t i c u l a r cases o f any s t a n d a r d r e c o g n i z e d i n accordance w i t h t h e covenant on
economic, s o c i a l and c u l t u r a l r i g h t s b y a S t a t e p a r t y t h e r e t o .

DOCUMENTATION

Organ and Records o f Article

session discussion Other documents number
ESC ( X ) E/C.2/241

CHR ( V I ) E/CN.4/364, p a r a s . 5-8, E/CN.4/403

and ESC ( X I ) , s u p p l . 5, annex I I I

ESC ( X I ) E/AC.7/SR.I5I

GA ( V I ) 3rd Com., 288th mtg.,

p a r a . 29

ESC ( X I I ) E/l880/Add.7
/2929
English
Page

DOCUMENTATION
(continued)

Organ and Records o f Article

session discussion Other documents number
CHR (VII) E/CN.4/AC.14/SR.1-3 E/CN.4/364/Add.l, p a r a . 5 ,
and E/CN.4/SR.203, E/CN.4/364/Add.3, p a r a s 2 - 9 ,
204, 205, 206, 207, E/CN.4/529, p a r a s . 15-24 and 3 0 - 5 0 ,
2 0 8 , 217, 218, 2 3 I - 4 E/CN.4/538/Rev.l, 539/Rev.l, 5 4 2 ,
and 2 3 6 - 7 543, 5 5 2 , 5 2 , 574 and C o r r . l ,
609 and Rev. 1 , 6 1 0 and A d d . l , 6 1 2 ,
6 1 5 , 616. and 6 1 8 , E/CN.4/NG0/26 and
28 and ESC ( X I I I ) , s u p p l . 9 , p a r a s .
50-4, annex I , a r t i c l e 1 9 , p a r a . 4
and annex I I .
ESC (XIII) E/2057/Add.2, E / 2 0 5 9 / A d d . 8 , 19,
E/2085/Add.l and E/C.2/299 p a r a . -
GA ( V I ) 3 r d Com., 3 6 0 t h mtg. A . i . 2 9 , A / 2 1 1 2 , p a r a . 23 W,
paras. 25-27, 363rd, para. 4
p a r a s . I 5 - I 6 and 3 6 4 t h
p a r a . 12

CHR (VIII) E/CN.4/SR.268-75 and E/CN.4/364/Rev.l, p a r a s . 6 - 9 ,

303 E / C N . 4 / 6 4 1 , annex I I , E/CN.4/650,
p a r a s , 1 0 . 1 4 - 1 9 , 54 and 58 ( b )
and ( c ) and C o r r . 2 , E/CN.4/654/
A d d . l , p a r a . 5 and Add.2,
E/CN.4/655/Add.2, 3 and 4 ,
E/CN.4/660, p a r a . 4 7 , E/CN.4/NGO/36,
E/CN.4/L.54 and A d d . l and Rev. 1-2,
L . 5 5 , L . 5 6 and R e v . l , L . 6 5 and R e v . l
and L . 6 9 - 7 3 and ESC ( X I V ) , s u p p l . 4 ,
p a r a s . IO6-IO9, annex I , A, a r t . 2 and
annex I V .

ESC ( X I V ) E/C.2/335 2

CHR ( I X ) E/CN.4/673, p a r a s . 54-6 2

GA ( V I I I ) 3 r d Com., 5 0 9 t h mtg., 2
para. 4
CHR (X) E/CN.4/694/Add.2 and E/CN.4/702,
No. X I I I 2
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DOCUMENTATION
(continued)

Organ and Records of Article

session discussion Other documents number
GA ( I X ) 3rd Com., 562nd mtg., A.i.58, A/2808, para. 38
paras.5-7, 565th, paras.
20 and 28, 566th, paras. 11
and 2k, 567th, para. 10,
568th, para.25, 569th,
para.28, 570th, paras. 3
and 11, 571st, paras.8,
21-2 and 30, 572nd, para.23,
573rd, p a r a s . 15 and 23,
575th, paras.6, 15 and 31-2,
576th, para.31 and 580th,
paras. 7 and 10
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ARTICLE 3 o f b o t h d r a f t covenants

Equal r i g h t s o f men and women

D r a f t covenant on c i v i l and p o l i t i c a l rights

The S t a t e s P a r t i e s t o t h e Covenant u n d e r t a k e t o ensure

t h e e q u a l r i g h t o f men and women t o t h e enjoyment o f a l l c i v i l
and p o l i t i c a l r i g h t s s e t f o r t h i n t h i s Covenant.

D r a f t covenant on economic, s o c i a l and c u l t u r a l rights

The S t a t e s P a r t i e s t o t h e Covenant u n d e r t a k e t o ensure

t h e e q u a l r i g h t o f men and women t o t h e enjoyment o f a l l
economic, s o c i a l and c u l t u r a l r i g h t s s e t f o r t h i n t h i s
Covenant.

31. Under t h e s e two a r t i c l e s S t a t e s p a r t i e s undertake t o ensure t h e e q u a l r i g h t

o f men and women t o t h e enjoyment o f a l l c i v i l and p o l i t i c a l r i g h t s and economic,
s o c i a l and c u l t u r a l r i g h t s s e t f o r t h i n t h e r e s p e c t i v e covenants. A previous
t e x t o f t h e a r t i c l e f o r t h e d r a f t covenant on economic, s o c i a l and c u l t u r a l rights
p r o v i d e d f o r "the enjoyment o f a l l economic, s o c i a l and c u l t u r a l r i g h t s and
p a r t i c u l a r l y t h o s e s e t f o r t h " i n t h a t covenant, and t h e i n i t i a l p r o p o s a l f o r
the d r a f t covenant on c i v i l and p o l i t i c * ! r i g h t s p r o v i d e d f o r " t h e enjoyment o f
a l l c i v i l and p o l i t i c a l rights".
32. I n t h e o p i n i o n o f some, i t was necessary t o p r o v i d e f o r t h e e q u a l r i g h t o f
men and women t o t h e enjoyment o f a l l c i v i l and p o l i t i c a l r i g h t s and a l l
economic, s o c i a l and c u l t u r a l r i g h t s , r e g a r d l e s s o f whether t h e y were I n c l u d e d
i n t h e covenants. That p r i n c i p l e , i t was argued, was i n i t s e l f a s t a t e m e n t o f
a b a s i c r i g h t and s h o u l d f i n d a p l a c e i n any i n t e r n a t i o n a l i n s t r u m e n t on
human r i g h t s . The n e g a t i o n o f t h a t concept would o n l y p e r p e t u a t e a s t a t e o f
a f f a i r s which u n j u s t i f i a b l y d i s t i n g u i s h e d between human b e i n g s on grounds o f
sex. O t h e r s were o f t h e view t h a t i t was one t h i n g t o p r o h i b i t discrimination,
and i n p a r t i c u l a r t o p r o v i d e f o r e q u a l i t y o f men and women i n t h e enjoyment o f
such r i g h t s as were " s e t f o r t h i n t h e covenants", b u t q u i t e a n o t h e r t o o b l i g e
S t a t e s t o u n d e r t a k e a commitment, t h e scope o f w h i c h was n o t c l e a r l y d e f i n e d . I t
was d i f f i c u l t t o share t h e assumption t h a t l e g a l systems and t r a d i t i o n s could
be o v e r r i d d e n , t h a t c o n d i t i o n s which were i n h e r e n t i n t h e n a t u r e and g r o w t h o f
families and o r g a n i z e d s o c i e t i e s c o u l d be i m m e d i a t e l y changed, o r t h a t articles
o f f a i t h and r e l i g i o n c o u l d be a l t e r e d , merely by t r e a t y l e g i s l a t i o n s . The
 A/2S29
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r e s u l t m i g h t be t h a t most S t a t e s would f i n d i t i m p o s s i b l e t o r a t i f y t h e
covenants. I t was a l s o doubted whether t h e r e i t e r a t i o n o f t h e p r i n c i p l e o f
e q u a l i t y o f men and women would serve any purpose o r l e n d any a d d i t i o n a l force
t o t h a t p r i n c i p l e w h i c h was c l e a r l y l a i d down i n t h e C h a r t e r . I t was f e l t that
the U n i t e d N a t i o n s was a l r e a d y engaged i n work i n t h e f i e l d of. e q u a l i t y o f t h e
sexes, and i t was b e s t t o a w a i t t h e r e s u l t o f t h o s e a c t i v i t i e s .
33 O p i n i o n s v a r i e d on t h e i n c l u s i o n o f t h e p r e s e n t t e x t o f t h e two a r t i c l e s o f
the covenants. On t h e one hand, t h e v i e w was expressed t h a t t h e a r t i c l e s were
r e d u n d a n t , inasmuch as a r t i c l e 2 o f b o t h covenants a l r e a d y p r o v i d e d t h a t each
S t a t e s h o u l d u n d e r t a k e t o r e s p e c t and t o ensure t o a l l persons t h e r i g h t s
r e c o g n i z e d i n t h e covenants w i t h o u t any d i s t i n c t i o n as t o sex, w h i l e a r t i c l e 24
o f t h e d r a f t covenant on c i v i l and p o l i t i c a l r i g h t s s t i p u l a t e d t h a t t h e l a w s h o u l d
p r o h i b i t any d i s c r i m i n a t i o n and guarantee t o a l l persons e q u a l and e f f e c t i v e
p r o t e c t i o n a g a i n s t any d i s c r i m i n a t i o n on grounds o f sex. Inclusion o f
p r o v i s i o n s r e l a t i n g t o women alone would o n l y weaken t h o s e a r t i c l e s and,, i n
p a r t i c u l a r , c a s t doubt on t h e f o r m , meaning and a p p l i c a t i o n o f a r t i c l e 2. I f
the p r i n c i p l e o f n o n - d i s c r i m i n a t i o n on grounds o f sex r e q u i r e d a r t i c l e 3 t o
make i t e f f e c t i v e , t h e n l o g i c a l l y t h e q u e s t i o n arose as t o t h e n e c e s s i t y o f
i n c l u d i n g s p e c i a l p r o v i s i o n s t o make t h e ban on d i s c r i m i n a t i o n on a l l t h e o t h e r
grounds enumerated i n a r t i c l e 2 e q u a l l y e f f e c t i v e . Moreover, t h e use o f such
e x p r e s s i o n s as "no one", "everyone" and " a l l p e r s o n s " i n t h e covenants was
quite unequivocal.
34. On t h e o t h e r hand, i t was contended t h a t a r t i c l e 3 d i d n o t m e r e l y s t a t e t h e
p r i n c i p l e o f e q u a l i t y b u t e n j o i n e d S t a t e s t o make e q u a l i t y an e f f e c t i v e r e a l i t y ,
t h a t I t would i n no way be p r e j u d i c i a l t o a r t i c l e 2 o f t h e covenants o r t o
a r t i c l e 24 o f t h e d r a f t covenant on c i v i l and p o l i t i c a l r i g h t s , and t h a t e v e r y
e f f o r t s h o u l d be made t o do away w i t h a l l p r e j u d i c e i n t h a t f i e l d , even though
i t meant t h e r e p e t i t i o n o f so e s s e n t i a l a p r o v i s i o n as t h a t o f e q u a l i t y between
men and women. The a r t i c l e s e n s h r i n e d a p r i n c i p l e o f e l e m e n t a r y j u s t i c e , namely,
e q u a l i t y o f r i g h t s i n a world, where, even i n t h e most advanced c o u n t r i e s , women
were s t i l l d e n i e d many r i g h t s . I t was a l s o r e c a l l e d t h a t t h e General Assembly
had d e c i d e d i n r e s o l u t i o n 421 E (v) t o i n c l u d e i n t h e covenant "an e x p l i c i t
r e c o g n i t i o n o f e q u a l i t y o f men and women" t o t h e enjoyment o f human r i g h t s , and
t h a t i n r e s o l u t i o n 543 ( V I ) , t h e Assembly had i n s t r u c t e d t h a t t h e two covenants
s h o u l d c o n t a i n "as many s i m i l a r p r o v i s i o n s as p o s s i b l e " i n o r d e r t o emphasize
t h e i r u n i t y o f purpose.
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DOCUMENTATIOW

Organ and Records o f Article

session discussion C t h e r documents number

GA ( V ) 3 r d Com., 2 9 1 s t , Annexes, a . i . 6 3 , A / 1 5 5 9 , p a r a . 50
2 9 9 t h , 3 1 5 t h mtgs

CHR ( V I I ) E/CN.4/SR.230 E/CN.4/513, p a r a . 2 2 , 5 1 5 / A d d . l l , 5 2 8 ,

para. 11-15, 529, para. 2 9 , 5 9 2 , 5 9 7 ,
WGL/25; ESC ( X I I I ) , s u p p l . 9 , p a r a . 4 8 ,
annex I , a r t . 3 1

ESC ( X I I I ) E/C.2/299 31 o f
d r a f t cov
on eco.,
soc. and
cul. r t s .

GA ( V I ) 3 r d Com., 3 6 0 t h ,
3 6 7 t h , 3 7 1 s t mtgs

CHR ( V I I I ) E/CN.VSR.501,302 E/CW.4/528/Add.l, 6 5 0 , p a r a s . 2 1 , ' 4 2 - 4 4 , 31 o f

NGO/38; ESC ( X I V ) s u p p l . 4 , p a r a s . 9 8 , d r a f t cov
1 4 2 - 1 4 3 , annex I A, a r t . 3 , and on eco.,
annex I I A soc. and'
cul. r t s .

ESC ( X I V ) E/C.2/SR.121 E/C.2/335

CHR ( I X ) E/CN.4/SR.37I- E/CN.4/674, p a r a . 5 , L . 2 6 3 , 2 8 9 ; ESC ( X V l ) , 3 o f

373, 409 s u p p l . 8 , p a r a s . 59-64, annex I A, a r t . 3 , both
annex I B, a r t . 3 , and annex I I I , p a r a s . draft
26-28 covenants

CHR ( X ) E/CN.4/694/Add.2, 7 0 2 , nos. I V and X I I I , 3 o f both

7 0 2 / A d d . 2 , no. XXIX, 7 0 2 / A d d . 6 , n o . draft
XXXIV covenants

GA ( X ) 3 r d Com., 5 6 5 t h , 3 o f both
569th, 571st, draft
5 7 3 r d , 5 7 5 t h mtgs covenants
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ARTICLE h o f t h e d r a f t covenant
on c i v i l and p o l i t i c a l r i g h t s

Emergency powers

1. I n t i m e o f p u b l i c emergency which t h r e a t e n s t h e l i f e
of t h e n a t i o n and t h e e x i s t e n c e o f w h i c h i s o f f i c i a l l y
p r o c l a i m e d , t h e S t a t e s P a r t i e s h e r e t o may t a k e measures
d e r o g a t i n g from t h e i r o b l i g a t i o n s under t h i s Covenant t o
the e x t e n t s t r i c t l y r e q u i r e d by t h e e x i g e n c i e s o f t h e
s i t u a t i o n , p r o v i d e d t h a t such measures are n o t i n c o n s i s t e n t
w i t h t h e i r o t h e r o b l i g a t i o n s under i n t e r n a t i o n a l l a w
and do n o t i n v o l v e d i s c r i m i n a t i o n s o l e l y on t h e ground o f
r a c e , c o l o u r , sex, language, r e l i g i o n o r s o c i a l o r i g i n .

2. No d e r o g a t i o n f r o m a r t i c l e s 6, 7, 8 (paragraphs 1
and 2), 11, 15, l6 and 18 may be made under t h i s p r o v i s i o n .

3. Any S t a t e P a r t y o f t h e Covenant a v a i l i n g i t s e l f o f t h e
r i g h t o f derogation s h a l l i n f o r m immediately the other
S t a t e s P a r t i e s t o t h e Covenant, t h r o u g h t h e i n t e r m e d i a r y
o f t h e S e c r e t a r y - G e n e r a l , o f t h e p r o v i s i o n s f r o m which i t
has d e r o g a t e d , t h e reasons by which i t was a c t u a t e d and
the date on w h i c h i t has t e r m i n a t e d such d e r o g a t i o n .

35 This a r t i c l e s p e c i f i e s the circumstances under w h i c h an emergency may arise

which would e n t i t l e a S t a t e p a r t y t o derogate f r o m i t s o b l i g a t i o n s under t h e
covenant, t h e c o n d i t i o n s under which measures d e r o g a t i n g f r o m i t s o b l i g a t i o n s
may be t a k e n , and t h e k i n d o f n o t i f i c a t i o n s t h a t are t o be s u b m i t t e d t h e r e o n .
36. At one t i m e such an a r t i c l e was c o n s i d e r e d unnecessary by those who
f a v o u r e d a g e n e r a l l i m i t a t i d n s clause g o v e r n i n g a l l t h e r i g h t s r e c o g n i z e d i n
the covenant and by those who c o n s i d e r e d t h a t t h e e v e n t u a l i t i e s f o r which t h e
a r t i c l e was proposed and t h e r i g h t s t o which i t m i g h t a p p l y were s u f f i c i e n t l y
covered by t h e p e r m i s s i v e l i m i t a t i o n s s e t f o r t h i n s e v e r a l a r t i c l e s o f t h e
covenant. I t was a l s o t h o u g h t t h a t such an a r t i c l e might.produce c o m p l i c a t e d
problems o f i n t e r p r e t a t i o n and g i v e r i s e t o c o n s i d e r a b l e abuse. The concept o f
" n a t i o n a l s e c u r i t y " o r o f " p u b l i c o r d e r " s e t f o r t h i n a number o f a r t i c l e s o f
the covenant would, t a k e care o f s i t u a t i o n s which m i g h t a r i s e i n t i m e o f war or
n a t i o n a l emergency. Moreover, those s p e c i f i c l i m i t a t i o n s had t h e advantage o f
a p p e a r i n g o n l y i n t h e a r t i c l e s i n which t h e y had been c o n s i d e r e d i n d i s p e n s a b l e ,
and a g e n e r a l clause m i g h t be used t o j u s t i f y more f a r - r e a c h i n g l i m i t a t i o n s .
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37- The o p i n i o n was expressed, however, t h a t i t was necessary t o envisage

p o s s i b l e c o n d i t i o n s o f emergency i n w h i c h S t a t e s w o u l d be compelled t o impose
l i m i t a t i o n s upon c e r t a i n human r i g h t s . I n t i m e o f war, f o r example, S t a t e s
c o u l d n o t be s t r i c t l y bound b y o b l i g a t i o n s assumed under a c o n v e n t i o n u n l e s s t h e
convention contained p r o v i s i o n s t o the contrary. There m i g h t a l s o be i n s t a n c e s
of e x t r a o r d i n a r y p e r i l o r c r i s i s , n o t i n t i m e o f war, when d e r o g a t i o n f r o m
o b l i g a t i o n s assumed under a c o n v e n t i o n became e s s e n t i a l f o r t h e s a f e t y o f t h e
people and t h e e x i s t e n c e o f t h e n a t i o n . These s i t u a t i o n s would n o t f a l l within
the scope o f t h e l i m i t a t i o n s p r o v i d e d f o r i n t h e v a r i o u s a r t i c l e s o f t h e
covenant, n o r c o u l d t h e y be a d e q u a t e l y covered b y a g e n e r a l l i m i t a t i o n s c l a u s e .
I t was a l s o i m p o r t a n t t h a t S t a t e s p a r t i e s s h o u l d n o t be l e f t f r e e t o decide f o r
themselves when and how t h e y would e x e r c i s e emergency powers because i t was
necessary t o guard a g a i n s t S t a t e s a b u s i n g t h e i r o b l i g a t i o n s under t h e convenant.
Reference was made t o t h e h i s t o r y o f t h e p a s t epoch d u r i n g which emergency
powers had been i n v o k e d t o suppress human r i g h t s and t o s e t up d i c t a t o r i a l
rgimes.

E x i s t e n c e o f p u b l i c emergency

38. The o n l y k i n d o f emergency envisaged i n t h e a r t i c l e i s a " p u b l i c emergency",

and a c c o r d i n g t o paragraph 1, such an emergency can occur o n l y when " t h e l i f e of
the n a t i o n " i s t h r e a t e n e d and o n l y when i t s e x i s t e n c e has been " o f f i c i a l l y
proclaimed" by the State p a r t y concerned.
39 T h i s f o r m u l a was e v o l v e d a f t e r many a l t e r n a t i v e s u g g e s t i o n s and p r o p o s a l s
had been c o n s i d e r e d . P r e v i o u s d r a f t s c o n t a i n e d such e x p r e s s i o n s as " i n t i m e o f
war o r o t h e r p u b l i c emergency", " i n t i m e o f war o r o t h e r p u b l i c emergency
t h r e a t e n i n g t h e i n t e r e s t s o f t h e p e o p l e " , and " i n t h e case o f a s t a t e o f emergency
o f f i c i a l l y p r o c l a i m e d by t h e a u t h o r i t i e s o r i n t h e case o f p u b l i c d i s a s t e r " .
Among t h e s u g g e s t i o n s made were " p u b l i c emergency t h r e a t e n i n g t h e s e c u r i t y ,
s a f e t y and g e n e r a l w e l f a r e o f t h e p e o p l e " , and " i n case o f e x c e p t i o n a l danger
made e v i d e n t by a p u b l i c a c t o r p u b l i c d i s a s t e r " . The main concern was t o
p r o v i d e f o r a q u a l i f i c a t i o n o f t h e k i n d o f p u b l i c emergency i n which a S t a t e
would be e n t i t l e d t o make d e r o g a t i o n s f r o m t h e r i g h t s c o n t a i n e d i n t h e covenant
which would n o t be open t o abuse. The p r e s e n t w o r d i n g i s based on t h e view that
p u b l i c emergency s h o u l d be o f such a magnitude as t o t h r e a t e n t h e l i f e o f t h e
n a t i o n as a whole. While i t was r e c o g n i z e d t h a t one o f t h e most i m p o r t a n t
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p u b l i e emergencies was t h e o u t b r e a k o f war, i t was f e l t t h a t t h e covenant

s h o u l d n o t envisage, even by i m p l i c a t i o n , t h e p o s s i b i l i t y o f war., as t h e
U n i t e d N a t i o n s was e s t a b l i s h e d w i t h t h e o b j e c t o f p r e v e n t i n g war. I t was
contended, however, t h a t " p u b l i c emergency" was t o o r e s t r i c t i v e a t e r m ; i t would
n o t , f o r example, cover n a t u r a l d i s a s t e r s , which almost always j u s t i f i e d a
S t a t e i n . d e r o g a t i n g f r c m some, a t l e a s t , o f t h e r i g h t s r e c o g n i z e d i n t h e
covenant.
ho. I t was t h o u g h t t h a t t h e r e f e r e n c e t o a p u b l i c emergency "which t h r e a t e n s
t h e l i f e o f t h e n a t i o n " would a v o i d any doubt as t o whether t h e i n t e n t i o n was
t o r e f e r t o a l l o r some o f t h e p e o p l e , a l t h o u g h i t was suggested t h a t a
r e f e r e n c e t o "the i n t e r e s t s o f t h e p e o p l e " was more a p p r o p r i a t e i n a covenant
which d e a l t w i t h t h e r i g h t s o f i n d i v i d u a l s and t h a t such a phrase would a l s o
p r o h i b i t governments f r o m a c t i n g c o n t r a r y t o t h e i n t e r e s t s and w e l f a r e o f
their people.
hi. The p r o v i s i o n t h a t t h e e x i s t e n c e o f a p u b l i c emergency s h o u l d be "officially
p r o c l a i m e d " by t h e S t a t e concerned was also considered e s s e n t i a l i n order t o
p r e v e n t S t a t e s from d e r o g a t i n g a r b i t r a r i l y from t h e i r o b l i g a t i o n s where such
an a c t i o n was n o t w a r r a n t e d by e v e n t s . Reference was made t o t h e f a c t t h a t i n
most c o u n t r i e s a p u b l i c emergency c o u l d be d e c l a r e d o n l y under c o n d i t i o n s
d e f i n e d by law, and t h a t t h a t guarantee would be l o s t u n l e s s a r e q u i r e m e n t of
p u b l i c p r o c l a m a t i o n was m a i n t a i n e d . I t was emphasized t h a t t h e a r t i c l e should
i n no way i m p l y t h a t c o n s t i t u t i o n a l and l e g a l l i m i t s imposed upon t h e powers
o f governments d u r i n g an emergency c o u l d be d e r o g a t e d from o r t h a t t h e e x e c u t i v e
power was n o t r e s p o n s i b l e f o r t a k i n g measures w h i c h m i g h t c o n f l i c t w i t h n a t i o n a l
guarantees.

Scope o f measures o f d e r o g a t i o n s -

h2. The measures w h i c h a S t a t e p a r t y may take i n derogation o f i t s b l i g a t i o n s

under t h e covenant a f t e r a p u b l i c emergency has been p r o c l a i m e d are s u b j e c t t o
t h r e e c o n d i t i o n s which are s p e c i f i e d i n paragraph 1 o f the a r t i c l e . First,
t h e y must be " t o t h e e x t e n t s t r i c t l y r e q u i r e d by t h e e x i g e n c i e s o f t h e situation".
Second, t h e y must n o t be " i n c o n s i s t e n t w i t h / t h e S t a t e p a r t y ' s / o t h e r
o b l i g a t i o n s under i n t e r n a t i o n a l law". T h i r d , t h e y must "not i n v o l v e
d i s c r i m i n a t i o n s o l e l y on t h e ground o f r a c e , c o l o u r , sex, language, r e l i g i o n
or social o r i g i n " .
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U3. There was g e n e r a l agreement on t h e f i r s t c o n d i t i o n . As regards t h e second,

i t was proposed, u n s u c c e s s f u l l y , t h a t i n o r d e r t o a v o i d any p o s s i b l e
m i s i n t e r p r e t a t i o n o f t h e words " i n t e r n a t i o n a l law", t h e r e s h o u l d be i n a d d i t i o n
t o these words a r e f e r e n c e t o t h e " p r i n c i p l e s o f t h e C h a r t e r and t h e U n i v e r s a l
D e c l a r a t i o n o f Human R i g h t s " . The o p i n i o n was expressed t h a t r e f e r e n c e t o t h e
C h a r t e r w o u l d a l s o make i t c l e a r t h a t war was r e c o g n i z e d o n l y i n case o f
s e l f - d e f e n s e o r f o r o t h e r reasons consonant w i t h t h e C h a r t e r . I t was p o i n t e d
o u t , however, t h a t t h e p r i n c i p l e s o f t h e C h a r t e r were p a r t o f i n t e r n a t i o n a l l a w
and t h a t t h e p r o v i s i o n s o f t h e U n i v e r s a l D e c l a r a t i o n m i g h t n o t be c o n s i d e r e d
as. such.
hk. The t h i r d c o n d i t i o n c o n c e r n i n g n o n - d i s c r i m i n a t i o n a l s o met w i t h general
a p p r o v a l , a l t h o u g h t h e r e was some debate on t h e i n c l u s i o n o f t h e word " s o l e l y " .
For t h e r e t e n t i o n o f t h a t word, i t was argued t h a t a S t a t e m i g h t t a k e measures
derogating from the r i g h t s recognized i n t h e covenant t h a t c o u l d be c o n s t r u e d
as d i s c r i m i n a t o r y m e r e l y because t h e persons concerned belonged t o a c e r t a i n
r a c e , r e l i g i o n , e t c . , b u t t h a t t h e a c t u a l reason f o r t h e d e r o g a t i o n m i g h t be
otherwise. I t was t h e r e f o r e i m p o r t a n t t o emphasize t h a t t h e e v i l t o be avoided
was d i s c r i m i n a t i o n based s o l e l y on t h e grounds m e n t i o n e d . F u r t h e r , i t was
c o n s i d e r e d t h a t r e f e r e n c e t o t h e v a r i o u s grounds f o r n o n - d i s c r i m i n a t i o n s e t f o r t h
i n a r t i c l e 2, paragraph 2, o f t h e U n i v e r s a l D e c l a r a t i o n o f Human R i g h t s would n o t
be a p p r o p r i a t e , since l e g i t i m a t e r e s t r i c t i o n m i g h t i n some cases be imposed on
c e r t a i n c a t e g o r i e s mentioned t h e r e i n .

L i m i t a t i o n on d e r o g a t i o n s

^5. Paragraph 2 o f t h e a r t i c l e enumerates t h e p r o v i s i o n s o f t h e covenant f r o m

w h i c h no d e r o g a t i o n s may be made. The consensus o f o p i n i o n was t h a t certain
p r o v i s i o n s c o u l d n o t be d e r o g a t e d f r o m even i n t i m e s o f p u b l i c emergency, b u t
t h e r e was much d i s c u s s i o n on what those p r o v i s i o n s s h o u l d b e . Some expressed
t h e i r s a t i s f a c t i o n w i t h t h e p r e s e n t s p e c i f i c a t i o n s , a l t h o u g h i t was p o i n t e d o u t
t h a t t h e r e f e r e n c e t o a r t i c l e 18, p a r a g r a p h 3, r e l a t i n g t o m a n i f e s t a t i o n o f
r e l i g i o n o r b e l i e f m i g h t have t o be s u b j e c t t o t h e same degree o f d e r o g a t i o n
as a r t i c l e s 19 and 2 , d e r o g a t i o n s from which were n o t e x c l u d e d . Others t h o u g h t
t h a t i t would be necessary, b e f o r e t h e d r a f t i n g o f t h e covenant was c o m p l e t e d ,
t o make a t h o r o u g h s t u d y o f t h e a r t i c l e s t h a t a l l o w e d o f no d e r o g a t i o n , and i n
t h i s c o n n e x i o n , r e f e r e n c e was made t o such a r t i c l e s o f t h e covenant as 5, , 12,
13, 14, 19, 20 and 21, as w h o l l y o r i n p a r t e n u n c i a t i n g r i g h t s t h a t should
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a p p r o p r i a t e l y be l i s t e d i n paragraph 2. Another o p i n i o n expressed was t h a t ,

w h i l e t h e r e was t o be no d e r o g a t i o n f r o m c e r t a i n p r o v i s i o n s , d e r o g a t i o n s c o u l d be
made f r o m t h e r e s t o f t h e covenant, i n c l u d i n g t h e measures o f i m p l e m e n t a t i o n ,
which m i g h t have f a r - r e a c h i n g consequences.

N o t i f i c a t i o n s i n case o f d e r o g a t i o n s

h6. When a S t a t e p a r t y a v a i l s i t s e l f o f t h e r i g h t o f d e r o g a t i o n i n t i m e o f
p u b l i c emergency, i t i s r e q u i r e d b y paragraph 3 t o comply w i t h t h r e e steps
concerning n o t i f i c a t i o n s o f i t s a c t i o n s . I t s h a l l i n each case " i n f o r m
immediately" the other States p a r t i e s , through the intermediary o f the
S e c r e t a r y - G e n e r a l , f i r s t , o f t h e p r o v i s i o n s o f t h e covenant f r o m w h i c h i t has
d e r o g a t e d ; second, o f t h e reasons b y w h i c h i t was a c t u a t e d ; and t h i r d , o f t h e
date on w h i c h i t has t e r m i n a t e d such d e r o g a t i o n .
47. I t was g e n e r a l l y agreed t h a t t h e p r o c l a m a t i o n o f a p u b l i c emergency and
c o n s e q u e n t i a l d e r o g a t i o n f r o m t h e p r o v i s i o n s o f t h e covenant was a m a t t e r o f
the g r a v e s t concern and t h e S t a t e s p a r t i e s had t h e r i g h t t o be n o t i f i e d o f such
action. I t was f u r t h e r agreed t h a t s i n c e t h e use o f emergency powers had o f t e n
been abused i n t h e p a s t , a mere n o t i f i c a t i o n would n o t be enough. The
d e r o g a t i n g S t a t e s h o u l d a l s o f u r n i s h t h e reason by w h i c h i t was a c t u a t e d ,
a l t h o u g h t h i s m i g h t n o t i n c l u d e e v e r y d e t a i l o f each p a r t i c u l a r measure t a k e n .
Moreover, n o t i f i c a t i o n s h o u l d be f u r n i s h e d o f t h e date on which t h e d e r o g a t i o n
was t e r m i n a t e d . The o p i n i o n was expressed t h a t t h e n o t i f i c a t i o n s s h o u l d be
made a l s o t o t h e U n i t e d Nations, and be p u b l i s h e d b y t h e S e c r e t a r y - G e n e r a l because
o f t h e importance o f t h e m a t t e r . I t was f e l t , however, t h a t i t m i g h t be
dangerous t o a l l o w t o S t a t e s which were n o t p a r t i e s t h e o p p o r t u n i t y t o express
o p i n i o n s , on how t h e S t a t e s p a r t i e s were f u l f i l l i n g t h e i r o b l i g a t i o n s under t h e
covenant. Another o p i n i o n was t h a t an a d d i t i o n a l guarantee containing a s t r i c t
procedure f o r cases o f d e r o g a t i o n s was necessary and t h a t t h i s m i g h t be done
by r e q u i r i n g S t a t e s t o submit t o t h e human r i g h t s committee o r t o another
s u i t a b l e a u t h o r i t y i n f o r m a t i o n on a l l t h e circumstances which had l e d t o t h e
suspension o f any o f t h e p r o v i s i o n s o f t h e covenant, and t h e body concerned
would i m m e d i a t e l y decide whether t h e d e r o g a t i o n was l e g i t i m a t e o r n o t . The
v i e w was a l s o expressed t h a t t h e i m p l e m e n t a t i o n p r o v i s i o n s o f t h e covenant would
a
P P l y *o a r t i c l e k.
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DOCUMENTATION

Organ and Records o f Article

session discussion Other documents number

DC ( I ) E/CN.4/AC.I/SR.II / . ! ^ a r t . 4, 11; E/CN.4/21,

annex , a r t . 4

CHR ( I I ) E/CN.4/AC.3/SR.8, E/CN.4/37, 68; ESC ( V I ) , s u p p l . 1 , 4

E/CN.4/SR.42 annex I , a r t . 4
DC ( I I ) E/CN.4/AC.1/SR.22, E/CN.4/AC.I/19, E/CN.4/95, annex , 4
art. 4
CHR ( I I I ) E/CN.4/82/Add.2, 4, 8 and 12, 85; 4
ESC ( V I l ) , s u p p l . 2 , annex B, a r t . 4
ESC ( V I I ) E/CN.2/88, 94, 98 4

CHR ( V ) E/CN.4/SR.88, 89, E/CN.4/170, 170/Add.l, 187, 188, 319, 4

126, 126/Corr.l, 324, 325, 335; ESC ( I X ) , s u p p l . 10,
127 annex I , a r t . 4, and annex I I
ESC ( I X ) E/C.2/I94 4
CHR ( V I ) E/CN.4/SR.138, 195, E/CN.4/353/Add.l, 2, 3, 6, 8, 9 and 4
196, I99 10, 365, 497, 498, L.10, NGO/4, 7, 10,
l 4 ; ESC ( X l ) , s u p p l . 5 , annex I , a r t . 2
and annex I I

ESC ( X I ) E/AC.7/SR.148, 149, E/L.68, E/C.2/254/Add.l, 259/Add.l 2

15; E/C.2/SR.79
GA ( V ) 3rd Com., 290th Annexes, a . i . 63, A/C.3/534, p a r a . 11 2
mtg.
CHR ( V I I ) E/CN.4/515/Add.2, 4, 6 and 13, 528, 2
p a r a s . 79-86, 552, 562, 562/Rev.l, 573,
628, NGO/21; ESC ( X I I I ) ; s u p p l . 9 , annex I ,
a r t . 2 , and annex I I I A
CHR (VIII) E/CN.4/SR.330,331 E/CN.4/528/Add.l, p a r a s . 50-56, 660, 2
668/Add.l7, L.121, 136, 139, 139/Rev.l,
211, 212, 213, NGO/39; ESC ( X I V ) ,
s u p p l . 4; p a r a s . 277-285, and annex I
art. 3
CHR ( I X ) E/CN.4/674, p a r a s . 30-32, NGO/47; 3
ESC ( X V I ) , s u p p l . 8, annex I B, a r t . 4
CHR ( X ) E/CN.4/702, no. X I I I 4
GA ( I X ) 4
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ARTICLE 4 o f t h e d r a f t covenant on economic, s o c i a l and c u l t u r a l r i g h t s

General L i m i t a t i o n s

The S t a t e P a r t i e s t o t h i s Covenant r e c o g n i z e t h a t i n t h e
enjoyment o f t h o s e r i g h t s p r o v i d e d b y t h e S t a t e i n c o n f o r m i t y
w i t h t h i s Covenant, t h e S t a t e may s u b j e c t such r i g h t s o n l y t o
such l i m i t a t i o n s as a r e determined b y law o n l y i n so f a r as
t h i s may be c o m p a t i b l e w i t h t h e n a t u r e o f these r i g h t s and
s o l e l y f o r t h e purpose o f p r o m o t i n g t h e g e n e r a l w e l f a r e i n a
democratic s o c i e t y .

48. Much o f t h e d i s c u s s i o n o f A r t i c l e 4 c e n t r e d around t h e q u e s t i o n whether

t h e r e was any need t o i n c l u d e a g e n e r a l l i m i t a t i o n s a r t i c l e i n t h e covenant
and, i f so, whether a r t i c l e 4 was adequate.
49. Those opposed t o t h e i n c l u s i o n o f such an a r t i c l e , o r t o t h e expansion o f
a r t i c l e 4, p o i n t e d o u t t h a t an a r t i c l e on g e n e r a l l i m i t a t i o n s was s u p e r f l u o u s
s i n c e t h e p r o v i s i o n s o f t h e d r a f t covenant on economic, s o c i a l and c u l t u r a l
r i g h t s were a l r e a d y l i m i t e d b y a r t i c l e 2 o f t h a t covenant. General l i m i t a t i o n s
would be open t o v a r y i n g i n t e r p r e t a t i o n s and would t e n d t o weaken o r d e s t r o y t h e
b i n d i n g f o r c e o f t h e p r o v i s i o n s o f t h e covenant. The a r t i c l e s as d r a f t e d d i d
n o t guarantee r i g h t s b u t m e r e l y r e c o g n i z e d them i n broad t e r m s . The n a t u r e o f
t h e o b l i g a t i o n s imposed and t h e manner o f e n u n c i a t i n g t h e r i g h t s made
l i m i t a t i o n s g e n e r a l l y unnecessary except i n a case such as t h a t o f t h e a r t i c l e on
t r a d e u n i o n r i g h t s ( a r t i c l e 8).

50. Those who s u p p o r t e d a r t i c l e 4 a d m i t t e d t h a t a r t i c l e 2 p r o v i d e d o n l y f o r t h e

p r o g r e s s i v e achievement o f t h e r i g h t s r e c o g n i z e d I n t h e covenant. However, t h e
v a r i o u s s u b s t a n t i v e a r t i c l e s were d r a f t e d i n broad g e n e r a l terms and S t a t e s would
themselves have t o r e g u l a t e and determine t h e scope o f t h e r i g h t s w i t h i n that
g e n e r a l framework; n e v e r t h e l e s s some i n d i c a t i o n was r e q u i r e d o f t h e l i m i t a t i o n s
which might be imposed so t h a t S t a t e s would n o t be f r e e t o l i m i t t h e r i g h t s
a r b i t r a r i l y i n any manner t h e y might choose. Such a l i m i t a t i o n clause should
n o t be d r a f t e d t o o g e n e r a l l y nor t o o r e s t r i c t i v e l y . The p r o v i s i o n s o f
a r t i c l e 2 should relate only t o t h e general l e v e l of attainment o f r i g h t s
and s h o u l d n o t be i n v o k e d b y S t a t e s as grounds f o r imposing numerous l i m i t a t i o n s
A/2929
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on them. A r t i c l e 2 d i d n o t i n d i c a t e when l i m i t a t i o n s c o u l d he l e g i t i m a t e and

i t was n e c e s s a r y t o s t a t e c l e a r l y t h a t l i m i t a t i o n s would be p e r m i s s i b l e o n l y i n
c e r t a i n c i r c u m s t a n c e s and under c e r t a i n c o n d i t i o n s , viith respect t o a r t i c l e s
on c i v i l and p o l i t i c a l r i g h t s t h e case was d i f f e r e n t ; some o f those a r t i c l e s
c o n t a i n e d no l i m i t a t i o n s w h i l e o t h e r s c o n t a i n e d s p e c i f i c l i m i t a t i o n s . I t was
n o t f e a s i b l e t o t r e a t economic, s o c i a l and c u l t u r a l r i g h t s i n t h e same way,
s i n c e t h e manner i n w h i c h t h e a r t i c l e s were d r a f t e d was d i f f e r e n t .
51. A t t h e same t i m e , t h e o p i n i o n was expressed t h a t a r t i c l e k ought t o be
expanded so as t o c o n t a i n a r e f e r e n c e t o r e s p e c t f o r t h e r i g h t s and freedoms o f
o t h e r s and t h e j u s t r e q u i r e m e n t s o f m o r a l i t y and p u b l i c o r d e r . There was, i t
was s a i d , an a b s o l u t e n e c e s s i t y f o r h a r m o n i z i n g t h e r i g h t s o f t h e i n d i v i d u a l on
t h e one hand and t h e r e q u i r e m e n t s o f t h e community on t h e o t h e r .
52. I n r e p l y i t was observed t h a t t h e covenant e s t a b l i s h e d m e r e l y t h e n e c e s s a r y
minimum and such c o n s i d e r a t i o n s as m o r a l i t y , p u b l i c o r d e r and r i g h t s and
freedom o f o t h e r s were more r e l e v a n t t o c i v i l and p o l i t i c a l r i g h t s t h a n t o
economic, s o c i a l and c u l t u r a l r i g h t s . Moreover, t h e q u e s t i o n o f t h e r i g h t s and
freedoms o f o t h e r s was f u l l y covered i n p a r a g r a p h 1 o f a r t i c l e 5 I t was f e a r e d
t h a t S t a t e s m i g h t .invoke a l l e g e d l y a c q u i r e d r i g h t s i n o r d e r t o t h w a r t t h e
implementation o f t h e r i g h t o f peoples t o s e l f - d e t e r m i n a t i o n and t o t h e c o n t r o l
of t h e i r n a t u r a l resources. Concepts such as p u b l i c o r d e r o r p r e v e n t i o n o f
d i s o r d e r , w h i c h were open t o b r o a d i n t e r p r e t a t i o n s , m i g h t e a s i l y n u l l i f y t h e
whole concept o f s e l f - d e t e r m i n a t i o n . A g a i n s t t h i s v i e w , i t was s a i d t h a t t h e
d i f f i c u l t y a r i s i n g o u t o f a p o s s i b l e c o n f l i c t between such l i m i t a t i o n s and
t h e p r o v i s i o n s o f paragraph 3 o f a r t i c l e 1 on t h e r i g h t o f a l l peoples and
n a t i o n s t o s e l f - d e t e r m i n a t i o n , was an argument n o t so much a g a i n s t a g e n e r a l
l i m i t a t i o n s clause as a g a i n s t t h e a r t i c l e on t h e r i g h t t o s e l f - d e t e r m i n a t i o n .
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DOCUMENTATION

Organ and Records o f Article

session discussion Other documents number

ESC ( X I ) E/L.68, p a r a . 83

GA (V) A . i . 63, A/C.3/534, p a r a . 15

CHR ( V I I ) E/CN.4/SR.234-6 //528, paras.I87-97, E/CN.4/554

and 6lO/Add.2 and ESC ( X I I l ) , suppl.9
para.55 and annex I , a r t . 3 2 (French
t e x t i n E/CN.4/635/Add.5, a r t . 4 7 ) and
annex I I

CHR ( V I I I ) E/CN.4/SR.306-8 E/CN.4/L.76, I I 5 , 175; ESC ( X I V ) , 32

suppl.4 p a r a s . 155-160 and Annex I ,
A, a r t . 4.
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ARTICLE 5 o f b o t h d r a f t covenants

Saving clauses

D r a f t covenant on c i v i l and p o l i t i c a l r i g h t s
1. N o t h i n g i n t h i s Covenant may he i n t e r p r e t e d as i m p l y i n g
f o r any S t a t e , group o r person any r i g h t t o engage i n any
a c t i v i t y o r p e r f o r m any a c t aimed a t t h e d e s t r u c t i o n o f any
of t h e r i g h t s and freedoms r e c o g n i z e d h e r e i n o r a t t h e i r
l i m i t a t i o n t o a greater extent than i s provided f o r i n t h i s
Covenant.

2. There s h a l l he no r e s t r i c t i o n upon o r d e r o g a t i o n f r o m any

of t h e fundamental human r i g h t s r e c o g n i z e d o r e x i s t i n g i n any
C o n t r a c t i n g State pursuant t o law, conventions, r e g u l a t i o n s o r
custom on t h e p r e t e x t t h a t t h e p r e s e n t Covenant does n o t
r e c o g n i z e such r i g h t s o r t h a t i t r e c o g n i z e s them t o a l e s s e r
extent.7/

D r a f t covenant on economic, s o c i a l and c u l t u r a l r i g h t s

1. N o t h i n g i n t h i s Covenant may he i n t e r p r e t e d as i m p l y i n g
f o r any S t a t e , group o r p e r s o n , any r i g h t t o engage i n any
a c t i v i t y o r t o p e r f o r m any a c t aimed a t t h e d e s t r u c t i o n o f any
o f t h e r i g h t s o r freedoms r e c o g n i z e d h e r e i n , o r a t t h e i r
l i m i t a t i o n t o a greater extent than i s provided f o r i n t h i s
Covenant.

2. No r e s t r i c t i o n upon o r d e r o g a t i o n f r o m any o f t h e
f u n d a m e n t a l human r i g h t s r e c o g n i z e d o r e x i s t i n g i n any c o u n t r y
i n v i r t u e o f law, c o n v e n t i o n s , r e g u l a t i o n s o r custom s h a l l be
a d m i t t e d on t h e p r e t e x t t h a t t h e p r e s e n t Covenant does n o t
r e c o g n i z e such r i g h t s o r t h a t I t r e c o g n i z e s them t o a l e s s e r
extent.8/

53- T h i s a r t i c l e concerns q u e s t i o n s r e l a t i n g t o t h e d e s t r u c t i o n o r l i m i t a t i o n
of t h e r i g h t s and freedoms r e c o g n i z e d i n t h e covenants and t h e s a f e g u a r d i n g
of r i g h t s r e c o g n i z e d i n d e p e n d e n t l y o f t h e covenants.

7/ A l t h o u g h t h e r e a r e v a r i a t i o n s i n t h e t e x t s o f paragraph 2 o f t h e a r t i c l e
i n t h e two d r a f t covenants, t h e d i s c u s s i o n s do n o t i n d i c a t e any d i f f e r e n c e
in interpretation.
8/ See a l s o under a r t i c l e 50 o f "the d r a f t covenant on c i v i l and p o l i t i c a l
r i g h t s and a r t i c l e 25 o f t h e d r a f t covenant on economic, s o c i a l and
cultural rights.
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5^. A proposal f o r t h e a d d i t i o n o f a paragraph t o t h e a r t i c l e i n t h e d r a f t

covenant on c i v i l and p o l i t i c a l r i g h t s s t a t i n g t h a t " n o t h i n g i n t h i s covenant
may he r e g a r d e d as i n any way d e t r a c t i n g f r o m t h e powers and f u n c t i o n s o f
t h e organs o f t h e U n i t e d N a t i o n s as l a i d down i n t h e C h a r t e r " , was r e j e c t e d
as b e i n g unnecessary i n v i e w o f A r t i c l e 103 o f t h e Charter.

Paragraph 1

55* I t "was s t a t e d t h a t t h e purpose o f p a r a g r a p h 1, w h i c h was d e r i v e d f r o m

0/
a r t i c l e 30 o f t h e U n i v e r s a l D e c l a r a t i o n o f Human R i g h t s , was t o p r o v i d e
p r o t e c t i o n a g a i n s t any m i s i n t e r p r e t a t i o n o f any p r o v i s i o n o f t h e covenants
w h i c h m i g h t be used t o j u s t i f y i n f r i n g e m e n t o f any r i g h t s and freedom r e c o g n i z e d
i n t h e covenants o r t h e r e s t r i c t i o n o f any such r i g h t o r freedom t o a g r e a t e r
e x t e n t t h a n was p r o v i d e d f o r t h e r e i n . The p a r a g r a p h was a l s o aimed a t c h e c k i n g
t h e growth o f nascent n a z i , f a s c i s t o r o t h e r t o t a l i t a r i a n i d e o l o g i e s ; groups
w i t h such t e n d e n c i e s c o u l d n o t i n v o k e t h e covenants t o j u s t i f y t h e i r activities.
I t was p o i n t e d o u t t h a t paragraph 1 would i n no way r e s t r i c t t h e r i g h t o f
c r i t i c i s m , since i t r e l a t e d only t o t h e d e s t r u c t i o n o f r i g h t s or t o t h e i r
l i m i t a t i o n t o a g r e a t e r e x t e n t t h a n was p r o v i d e d i n t h e covenant.
56. O p p o s i t i o n t o p a r a g r a p h 1 was expressed on t h e grounds t h a t i t was vague,
unnecessary and open t o abuse. I t was t h o u g h t t h a t , w i d e l y I n t e r p r e t e d , t h e
p a r a g r a p h might p e r m i t a S t a t e , w h i c h so d e s i r e d , t o c u r t a i l v e r y c o n s i d e r a b l y
the exercise of c e r t a i n r i g h t s . I n p a r t i c u l a r , a State might place undesirable
r e s t r i c t i o n s on t h e freedom o f e x p r e s s i o n guaranteed i n t h e d r a f t covenant on
c i v i l and p o l i t i c a l r i g h t s . The v i e w was f u r t h e r expressed t h a t t h e p a r a g r a p h
might be used t o q u a l i f y e v e r y p r o v i s i o n i n t h e covenants. I t m i g h t even p e r m i t
dangerous i n r o a d s i n t o t h e p r o v i s i o n s o f t h e covenants as a whole. Moreover,

9/ A r t i c l e 30 o f t h e D e c l a r a t i o n reads: " N o t h i n g i n t h i s D e c l a r a t i o n may

~ be i n t e r p r e t e d as i m p l y i n g f o r any S t a t e , group o r p e r s o n any r i g h t t o
engage i n any a c t i v i t y o r t o p e r f o r m any a c t aimed a t t h e d e s t r u c t i o n
of any o f t h e r i g h t s and freedoms s e t f o r t h h e r e i n . "
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i t would he d i f f i c u l t t o know e x a c t l y what a c t i o n s c o u l d be c o n s i d e r e d as

b e i n g aimed a t t h e d e s t r u c t i o n o f t h e r i g h t s .
57* A l t h o u g h i t v/as proposed t h a t s i n c e t h e substance o f p a r a g r a p h 1 was
c l o s e l y r e l a t e d t o freedom o f speech, i t should be i n c l u d e d i n a r t i c l e 19 o f
t h e d r a f t covenant on c i v i l and p o l i t i c a l r i g h t s , t h i s p r o p o s a l was r e j e c t e d
because i t was f e l t t h a t paragraph 1 a l s o a f f e c t e d other a r t i c l e s of the
covenants such as t h e a r t i c l e s r e l a t i n g t o assembly and a s s o c i a t i o n .
58. The o p i n i o n was expressed t h a t S t a t e s were h a r d l y l i k e l y t o undertake the
o b l i g a t i o n s unders t h e covenant and t h e n a t t e m p t t o d e s t r o y or l i m i t t h e
r i g h t s t o g r e a t e r e x t e n t t h a n p r o v i d e d i n t h e covenant, b u t a p r o p o s a l t o
d e l e t e t h e r e f e r e n c e t o " S t a t e s " was rejected. I t vas observed t h a t States
viere a l r e a d y empowered t o l i m i t many r i g h t s , f o r such reasons as t h e p r o t e c t i o n
o f " p u b l i c o r d e r " or " n a t i o n a l s e c u r i t y " and t h a t t h e y s h o u l d n o t be encouraged
t o r e s t r i c t f u r t h e r t h e p r o v i s i o n s o f t h e covenants;
59 A n o t h e r p r o p o s a l , w h i c h was a l s o r e j e c t e d , aimed a t e x c l u d i n g any
r e s t r i c t i o n o f r i g h t s and freedoms w h i c h would be i n c o m p a t i b l e w i t h t h e purposes
and p r i n c i p l e s o f t h e U n i t e d N a t i o n s C h a r t e r and o f t h e U n i v e r s a l D e c l a r a t i o n
o f Human R i g h t s . I n s u p p o r t o f t h i s p r o p o s a l i t was argued t h a t such a
p r o v i s i o n was consonant w i t h t h e C h a r t e r , p a r t i c u l a r l y w i t h A r t i c l e 103, and
necessary i n view o f t h e f a c t t h a t n o t a l l human r i g h t s were i n c l u d e d i n t h e
covenants. However, i t was c o n s i d e r e d t h a t t h e purposes and p r i n c i p l e s o f t h e
C h a r t e r and t h e p r o v i s i o n s o f t h e D e c l a r a t i o n were more g e n e r a l t h a n were t h e
p a r t i c u l a r s t i p u l a t i o n s o f t h e covenants and t h a t no c o n c l u s i o n s c o u l d he
drawn f r o m them c o n c e r i n g o t h e r r i g h t s and freedoms w h i c h were n o t specifically
set. f o r t h i n t h e covenants.

Paragraph 2

60. Paragraph 2 was opposed on t h e ground t h a t i t m i g h t a l l o w S t a t e s t o

c o n t i n u e t o d e r i v e b e n e f i t f r o m i n e q u i t a b l e laws or t r e a t i e s , t h a t i t was
s u p e r f l u o u s because i t s p r i n c i p l e s were f u l l y r e c o g n i z e d i n i n t e r n a t i o n a l law,
and t h a t i t m i g h t g i v e r i s e t o m i s u n d e r s t a n d i n g and p o s s i b l y a l l o w S t a t e s which
d i d n o t agree w i t h c e r t a i n p r o v i s i o n s o f t h e covenant t o a v o i d any o b l i g a t i o n s
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imposed on them. I t was t h o u g h t i n c o n c e i v a b l e t h a t any S t a t e r a t i f y i n g t h e

covenant would use i t as a p r e t e x t t o a b r i d g e t h e r i g h t s and freedoms a l r e a d y
e x e r c i s e d o r guaranteed w i t h i n i t s t e r r i t o r y , i f t h e covenant s h o u l d impose
lesser obligations i na p a r t i c u l a r sphere.
61. I t was agreed, however, t h a t t h e covenant ought t o i n c l u d e a p r o v i s i o n
which would cover p o s s i b l e c o n f l i c t s between t h e covenant and t h e laws,
r e g u l a t i o n s , and customs o f c o n t r a c t i n g S t a t e s and o f agreements o t h e r t h a n t h e
covenants b i n d i n g upon them. I t was a l s o necessary t o p r e v e n t S t a t e s f r o m
l i m i t i n g r i g h t s a l r e a d y enoyed by persons w i t h i n t h e i r t e r r i t o r i e s on t h e grounds
t h a t such r i g h t s were n o t r e c o g n i z e d i n t h e covenants o r were r e c o g n i z e d t o a
lesser extent. I t was c o n s i d e r e d t h a t t h e proposed r u l e , whereby i n case o f
c o n f l i c t t h e p r o v i s i o n s g i v i n g t h e maximum p r o t e c t i o n s h o u l d a p p l y , p r o v i d e d
a sound b a s i s f o r t h e p r o t e c t i o n o f human r i g h t s .
62. A p r o p o s a l t o exlude f r o m paragraph 2 such e x i s t i n g l a w s , c o n v e n t i o n s ,
r e g u l a t i o n s o r customs as were c o n t r a d i c t o r y t o t h e p r o v i s i o n s and s p i r i t o f t h e
covenant and t h e C h a r t e r was n o t adopted. I n s u p p o r t o f t h e p r o p o s a l t h e view
was expressed t h a t i n no circumstances should e x i s t i n g p r o v i s i o n s t a k e
precedence over t h e p r o v i s i o n s o f t h e covenant and t h e C h a r t e r and t h u s p r e v e n t
p r o g r e s s towards g r e a t e r enjoyment o f human r i g h t s . Those opposed h e l d t h e
view t h a t laws and c o n v e n t i o n s which guaranteed a fundamental human r i g h t c o u l d
n o t p o s s i b l y be i n c o n t r a d i c t i o n e i t h e r t o t h e covenants o r t h e C h a r t e r , s i n c e
paragraph 2 c o u l d n o t be i n v o k e d i n s u p p o r t o f any p r o v i s i o n s d i r e c t e d a t t h e
l i m i t a t i o n o r s u p p r e s s i o n o f t h e r i g h t s d e a l t w i t h i n t h e covenants.
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DOCUMENTATION

D r a f t covenant on c i v i l and p o l i t i c a l r i g h t s

Organ and Records o f Article

session discussion Other d o c u m e n t a t i o n number

CHR ( I I ) E/CN.4/SR.42 E/CN.4/75; ESC ( V l ) , s u p p l . 1 ,

annex I , a r t . 22
DC ( I I ) E/CN.4/AC.1/SR.28, E/CN.4/AC.1/19; E/CN.4/95, annex B,
44 a r t . 2 2 and p r o p o s a l f o r an a d d i t i o n a l 22
article
CHR ( I I I ) E/CN.4/82/Add.2, 4, 8 and 12, 85; 22
ESC ( V I I ) , s u p p l . 2 , annex B, a r t . 2 2
and p r o p o s a l f o r an a d d i t i o n a l a r t i c l e
CHR(V) E/CN.4/SR.123,124, E/CN.4/170,188, 236, 264, 296, 315,317, 22
130 326; ESC ( I X ) , suppl.10, annex I ,
a r t . 22
CHR ( V I ) E/CN.4/SR.175, 181, E/CN.4/353/Add.l, 10 and 11, 365, 22
200 416, 454, 461, 468, L.10 and C o r r . l
( E n g . ) , p a r a s . 77-78; ESC ( X l ) ,
s u p p l . 5, annex I , a r t . l 8
ESC ( X I ) E/AC.7/SR.l48,l49 E/L.68, p a r a . 98 "15
CHR ( V I I ) E/CN.4/515/Add.4, 528, p a r a s . 222-223, 18
573; ESC ( X I I l ) , s u p p l . 9 , annex I ,
a r t . 1 8 , and annex I I I A
CHR ( V I I I ) E/CN.4/SR.328 E/CN.4/668/Add.l5, L.134, 198, 18
198/Rev.l, 206, 207, NGO/36;
ESC ( X I V ) , s u p p l . 4 , p a r a s . 263-268,
annex I B , a r t . 4
CHR ( I X ) ESC ( X V I ) , s u p p l . 8 , annex I B, 4
art. 5
GA ( I X ) 5

D r a f t covenant on economic, s o c i a l and c u l t u r a l rights

ESC (XIIl) E/2057/Add.2
CHR ( V I I I ) E/CN.4/SR.303, 304 E/CN.4/650, p a r a s . 58 ( v ) ( e ) ,
305, 6 655/Add.2, L . 6 7 , 6 7 / C o r r . l , 2 (E o n l y )
67/Rev.l, 114, I l 4 / R e v . l , I l 4 / R e v . 2 ,
168, 168/Rev.l, I69, 170, 172, 1 7 , 174,
NGO/36; ESC ( X I V ) , s u p p l . 4 , p a r a s .
149-I54, annex I A, a r t . 5

GA ( I X ) 5
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CHAPTER V I

C I V I L AND POLITICAL RIGHTS

( P a r t I I I , A r t i c l e s 6-26 o f t h e D r a f t Covenant
on c i v i l and p o l i t i c a l r i g h t s )

Table o f Contents

Paragraphs

A r t i c l e 6 - Right t o l i f e 1-10
Formulation o f the r i g h t
Laws imposing c a p i t a l punishment
Amnesty, pardon o r commutation o f d e a t h sentence
P r o h i b i t i o n o f t h e e x e c u t i o n o f d e a t h sentence on
a p r e g n a n t woman

A r t i c l e 7 - Inhuman o r d e g r a d i n g t r e a t m e n t ll-l6
Inhuman o r d e g r a d i n g t r e a t m e n t o r punishment
Medical o r s c i e n t i f i c experimentation

A r t i c l e 8 - P r o h i b i t i o n o f s l a v e r y , s e r v i t u d e and f o r c e d l a b o u r 17-25
Slavery
Servitude
Forced o r compulsory l a b o u r

A r t i c l e 9 - L i b e r t y and s e c u r i t y o f person 26-38

L i m i t a t i o n s clause
Guarantee o f p e r s o n a l l i b e r t y i n connexion w i t h any
arrest o r detention
Guarantees i n f a v o u r o f persons a r r e s t e d o r d e t a i n e d
on a c r i m i n a l charge

A r t i c l e 10 - Treatment o f persons d e p r i v e d o f t h e i r l i b e r t y 39-44

Treatment o f accused persons
O r i e n t a t i o n o f t h e p e n i t e n t i a r y system towards t h e
r e f o r m a t i o n and s o c i a l r e h a b i l i t a t i o n o f p r i s o n e r s

A r t i c l e 11 - Contractual obligations 45-49

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Paragraphs

A r t i c l e 12 - Freedom o f movement 50 -6
L i m i t a t i o n s clause
Prohibition of exile
R i g h t t o e n t e r one ' s c o u n t r y

A r t i c l e 13 - E x p u l s i o n o f a l i e n s 61-72
Protection o f aliens against a r b i t r a r y expulsion
R i g h t o f asylum
Extradition

A r t i c l e lk - F a i r t r i a l 73-92
E q u a l i t y b e f o r e t h e c o u r t s and t r i b u n a l s
R i g h t t o a f a i r and p u b l i c h e a r i n g
R i g h t s o f t h e accused
The p o s i t i o n o f j u v e n i l e s
Compensation f o r m i s c a r r i a g e s o f j u s t i c e

A r t i c l e 15 - P r o h i b i t i o n o f r e t r o a c t i v e a p p l i c a t i o n o f c r i m i n a l l a w 93-96

A r t i c l e 16 - R e c o g n i t i o n as a p e r s o n b e f o r e t h e l a w 97-98

A r t i c l e 17 - P r i v a c y , heme, correspondence, honour and r e p u t a t i o n 99-10^-

A r t i c l e 18 - Freedom o f t h o u g h t , conscience and r e l i g i o n 105-U8

Freedom o f t h o u g h t , conscience and r e l i g i o n
T
Freedom t o m a i n t a i n o r t o change o n e s religion
Limitations clause
The r i g h t o f p a r e n t s
Rights o f r e l i g i o u s bodies
Acts c o n t r a r y t o r e l i g i o u s observance o r p r a c t i c e
A proposal f o r a b r i e f e r article

A r t i c l e 19 - Freedom o f o p i n i o n and i n f o r m a t i o n 119-138

Freedom o f o p i n i o n
L i m i t a t i o n s clause
The q u e s t i o n o f c e n s o r s h i p
Obstacles t o t h e f r e e f l o w o f i n f o r m a t i o n
Other p r o p o s a l s
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Paragraphs

A r t i c l e 20 - R i g h t o f p e a c e f u l assembly 139-143
F o r m u l a t i o n o f the right
Limitations clause

A r t i c l e 21 - R i g h t o f a s s o c i a t i o n 144-152
Formulation of the r i g h t
Limitations clause
I n t e r n a t i o n a l Labour Convention on Freedom o f
A s s o c i a t i o n and P r o t e c t i o n o f t h e R i g h t t o Organize

A r t i c l e 22 - R i g h t s r e l a t i n g t o m a r r i a g e 153-169
Equal r i g h t s f o r spouses "as t o m a r r i a g e , d u r i n g
marriage and a t i t s d i s s o l u t i o n "
D i s s o l u t i o n o f marriage
Protection of c h i l d r e n o f the marriage
The i n c l u s i o n o f a n o n - d i s c r i m i n a t i o n clause
"Marriageable age"
Consent o f t h e i n t e n d i n g spouses

A r t i c l e 23 - P o l i t i c a l r i g h t s 170-177
Formulation o f p o l i t i c a l r i g h t s
N o n - d i s c r i m i n a t i o n clause
Limitations clause

A r t i c l e 24 - E q u a l i t y b e f o r e t h e law 178-182
E q u a l i t y b e f o r e t h e law
Prohibition of discrimination

A r t i c l e 25 - R i g h t s o f m i n o r i t i e s 183-188
Meaning o f t h e word " m i n o r i t i e s "
Nature and scope o f t h e r i g h t s o f m i n o r i t i e s
Obligations o f States p a r t i e s

A r t i c l e 26 - P r o h i b i t i o n o f advocacy o f ' n a t i o n a l , r a c i a l o r
religious h o s t i l i t y 189-194

Right of property 195-212

I n c l u s i o n o r n o n - i n c l u s i o n i n t h e d r a f t covenants
Formulation of the right
L i m i t a t i o n s o f the r i g h t
Restrictions < State a c t i o n
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ARTICLE 6

Right t o L i f e

1. Wo one s h a l l he a r b i t r a r i l y d e p r i v e d o f h i s l i f e .
Everyone's r i g h t t o l i f e s h a l l be p r o t e c t e d b y l a w .

2. I n c o u n t r i e s where c a p i t a l punishment e x i s t s , sentence

o f d e a t h may be imposed o n l y as a p e n a l t y f o r t h e most s e r i o u s
crimes p u r s u a n t t o t h e sentence o f a competent c o u r t and i n
accordance w i t h l a w n o t c o n t r a r y t o t h e p r i n c i p l e s o f t h e
U n i v e r s a l D e c l a r a t i o n o f Human R i g h t s o r t h e Convention on
the P r e v e n t i o n and Punishment o f t h e Crime o f Genocide.

3. Any one sentences t o d e a t h s h a l l have t h e r i g h t t o seek

pardon o r commutation o f t h e sentence. Amnesty, pardon o r
commutation o f t h e sentence o f d e a t h may be g r a n t e d i n a l l cases.

h. Sentence o f d e a t h s h a l l n o t be c a r r i e d o u t on a p r e g n a n t
woman.

Formulation o f the r i g h t

1. There was g e n e r a l agreement r e g a r d i n g t h e importance o f s a f e g u a r d i n g t h e

r i g h t o f everyone t o l i f e t h r o u g h t h e covenant a l t h o u g h v a r i o u s o p i n i o n s were
h e l d as t o how t h e r i g h t s h o u l d be f o r m u l a t e d . One v i e w was t h a t t h e covenant
s h o u l d e n u n c i a t e t h e p r i n c i p l e t h a t no one s h o u l d be d e p r i v e d o f l i f e under any
circumstances. I t was m a i n t a i n e d t h a t i n d r a f t i n g an a r t i c l e on t h e r i g h t t o
l i f e , w h i c h was t h e most f u n d a m e n t a l o f a l l r i g h t s , no m e n t i o n s h o u l d be made
of c i r c u m s t a n c e s under w h i c h t h e t a k i n g o f l i f e m i g h t seem t o be condoned.
A g a i n s t t h i s v i e w , i t was contended t h a t t h e covenant must be r e a l i s t i c , that
c i r c u m s t a n c e s e x i s t e d under w h i c h t h e t a k i n g o f l i f e was j u s t i f i e d .

2. A second v i e w was t h a t i n a covenant w h i c h would n o t admit o f p r o g r e s s i v e

i m p l e m e n t a t i o n o f i t s p r o v i s i o n s , i t was d e s i r a b l e t o d e f i n e as p r e c i s e l y as
p o s s i b l e t h e e x a c t scope o f t h e r i g h t and t h e l i m i t a t i o n s t h e r e t o i n o r d e r
t h a t c o n t r a c t i n g S t a t e s would be under no u n c e r t a i n t y about t h e i r o b l i g a t i o n s .
The p r o p e r method o f d r a f t i n g t h e a r t i c l e was t o s p e l l o u t s p e c i f i c a l l y t h e
c i r c u m s t a n c e s i n w h i c h t h e t a k i n g o f l i f e would n o t be deemed a v i o l a t i o n o f t h e
general o b l i g a t i o n t o p r o t e c t l i f e . Among t h e e x c e p t i o n s proposed were:
(a) e x e c u t i o n o f d e a t h sentence imposed i n accordance w i t h law; ( b ) k i l l i n g
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in s e l f - d e f e n s e o r defense o f a n o t h e r ; () d e a t h r e s u l t i n g from a c t i o n l a w f u l l y
t a k e n t o suppress i n s u r r e c t i o n , r e b e l l i o n o r r i o t s ; ( d ) k i l l i n g i n a t t e m p t i n g
t o e f f e c t l a w f u l a r r e s t o r p r e v e n t i n g t h e escape o f a p e r s o n i n l a w f u l c u s t o d y ;
( e ) k i l l i n g i n t h e case o f enforcement measures a u t h o r i z e d b y t h e C h a r t e r ;
( f ) k i l l i n g i n defense o f p e r s o n s , p r o p e r t y o r s t a t e o r i n c i r c u m s t a n c e s o f
grave c i v i l commotion; ( g ) k i l l i n g f o r v i o l a t i o n o f honour. Against t h i s view,
i t was m a i n t a i n e d t h a t any enumeration o f l i m i t a t i o n s would n e c e s s a r i l y be
i n c o m p l e t e and would, moreover, t e n d t o convey t h e i m p r e s s i o n t h a t greater
importance was b e i n g g i v e n t o t h e e x c e p t i o n s t h a n t o t h e r i g h t . An a r t i c l e
d r a f t e d i n such terms would seem t o a u t h o r i z e k i l l i n g r a t h e r t h a n s a f e g u a r d t h e
right t o l i f e .
3. A t h i r d v i e w was t h a t a g e n e r a l f o r m u l a t i o n which d i d n o t l i s t e x c e p t i o n s
was p r e f e r a b l e . The a r t i c l e s h o u l d s i m p l y b u t c a t e g o r i c a l l y a f f i r m t h a t "no
f
one s h a l l be a r b i t r a r i l y d e p r i v e d o f h i s l i f e " and t h a t "everyone s r i g h t t o l i f e
s h a l l be p r o t e c t e d b y law". I t was e x p l a i n e d t h a t a c l a u s e p r o v i d i n g t h a t no
one s h o u l d he d e p r i v e d o f h i s l i f e " a r b i t r a r i l y " would i n d i c a t e t h a t t h e r i g h t
was n o t a b s o l u t e and. o b v i a t e t h e n e c e s s i t y o f s e t t i n g o u t t h e p o s s i b l e
exceptions i n d e t a i l . The use o f t h e t e r m " a r b i t r a r i l y " was c r i t i c i z e d , however,
on t h e ground t h a t i t d i d n o t express a g e n e r a l l y , r e c o g n i z e d i d e a and t h a t i t
was ambiguous and open t o s e v e r a l i n t e r p r e t a t i o n s . A s u g g e s t i o n was made t h a t
the use o f t h e t e r m " i n t e n t i o n a l l y " would be p r e f e r a b l e . I n r e p l y i t was s t a t e d
t h a t t h e t e r m " a r b i t r a r i l y " had been used i n s e v e r a l a r t i c l e s o f t h e U n i v e r s a l
D e c l a r a t i o n o f Human R i g h t s and i n c e r t a i n a r t i c l e s o f t h e d r a f t covenant. I t
was e x p l a i n e d t h a t t h e t e r m " a r b i t r a r i l y " meant b o t h " i l l e g a l l y " and " u n j u s t l y " .
k. The p r o v i s i o n t h a t "everyone's r i g h t t o l i f e s h a l l be p r o t e c t e d b y l a w " was
i n t e n d e d t o emphasize t h e d u t y o f S t a t e s t o p r o t e c t l i f e . While t h e v i e w was
expressed t h a t t h e a r t i c l e s h o u l d concern i t s e l f o n l y w i t h p r o t e c t i o n o f t h e
i n d i v i d u a l from unwarranted actions by t h e S t a t e , t h e m a j o r i t y thought t h a t
S t a t e s s h o u l d be c a l l e d upon t o p r o t e c t human l i f e a g a i n s t unwarranted a c t i o n s
by p u b l i c a u t h o r i t i e s as w e l l as b y p r i v a t e p e r s o n s .

Laws i m p o s i n g c a p i t a l punishment

5. Some o p p o s i t i o n was expressed t o t h e i n c l u s i o n i n t h e a r t i c l e o f p r o v i s i o n s

d e a l i n g w i t h c a p i t a l punishment s i n c e i t m i g h t g i v e t h e i m p r e s s i o n t h a t t h e
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p r a c t i c e was s a n c t i o n e d by t h e i n t e r n a t i o n a l community. The o p i n i o n was expressed

t h a t r e s p e c t f o r human l i f e r e q u i r e d t h a t a covenant on human r i g h t s should., as
one o f i t s main p r i n c i p l e s , p r o v i d e f o r t h e a b o l i t i o n o f c a p i t a l punishment.
On t h e o t h e r hand., i t was p o i n t e d o u t t h a t c a p i t a l punishment e x i s t e d i n
certain countries. I t was r e c o g n i z e d , however, t h a t adequate safeguards should
be p r o v i d e d i n o r d e r t h a t t h e death p e n a l t y would n o t be imposed u n j u s t l y o r
c a p r i c i o u s l y i n d i s r e g a r d o f human r i g h t s . I t was agreed t h a t t h e death
sentence s h o u l d be imposed o n l y ( a ) as a p e n a l t y f o r t h e most s e r i o u s crimes,
( b ) pursuant t o t h e sentence o f a competent c o u r t and ( c ) i n accordance w i t h
law n o t c o n t r a r y t o t h e p r i n c i p l e s o f t h e U n i v e r s a l D e c l a r a t i o n o f Human R i g h t s
o r t h e Convention on t h e P r e v e n t i o n and Punishment o f t h e Crime o f Genocide.
6. The phrase "most s e r i o u s c r i m e s " was c r i t i c i z e d as l a c k i n g p r e c i s i o n , s i n c e
t h e concept o f " s e r i o u s c r i m e s " d i f f e r e d from one c o u n t r y t o a n o t h e r . I t was
t h e r e f o r e suggested t h a t t h e t e r m s h o u l d be more c l e a r l y d e f i n e d , A suggestion
was a l s o made t h a t " p o l i t i c a l c r i m e s " s h o u l d n o t e n t a i l t h e d e a t h p e n a l t y .
7. There was agreement t h a t t h e d e a t h p e n a l t y s h o u l d be imposed by a
"competent c o u r t " . A s u g g e s t i o n t h a t t h e c o u r t s h o u l d a l s o be "independent"
was opposed on t h e ground t h a t t h e "independence" o f t r i b u n a l s was a l r e a d y
p r o v i d e d f o r i n a n o t h e r a r t i c l e o f t h e covenant.^
8. The clause p r o v i d i n g t h a t a d e a t h sentence must be imposed i n accordance
w i t h l a w "not c o n t r a r y t o t h e p r i n c i p l e s o f t h e U n i v e r s a l D e c l a r a t i o n o f Human
R i g h t s " was i n t e n d e d t o ensure t h a t no p e r s o n would be d e p r i v e d o f l i f e pursuant
to u n j u s t laws. The l a w invoked must n o t be c o n t r a r y t o t h e s p i r i t o f t h e
Universal Declaration. However, t h e r e f e r e n c e t o t h e U n i v e r s a l D e c l a r a t i o n was
opposed on t h e ground t h a t t h e D e c l a r a t i o n was. a s t a t e m e n t - o f ideals, necessarily
b r o a d and vague and l a c k i n g i n l e g a l p r e c i s i o n . Mere r e f e r e n c e t o , t h a t document
could n o t prevent t h e adoption o r execution o f u n j u s t laws. The r e f e r e n c e t o
t h e Convention on t h e P r e v e n t i o n and Punishment o f t h e Crime o f Genocide was
i n t e n d e d t o p r o v i d e a f u r t h e r y a r d s t i c k t o w h i c h n a t i o n a l laws a u t h o r i z i n g t h e
i m p o s i t i o n o f t h e d e a t h sentence s h o u l d conform.

1/ See a r t i c l e 1 4 , paragraph 1 .
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Amnesty, pardon o r commutation o f d e a t h sentence

9 The i n c l u s i o n o f t h e p r o v i s i o n o f p a r a g r a p h 3 was s u p p o r t e d f o r h u m a n i t a r i a n
reasons. I t was t h o u g h t e s s e n t i a l t o m i t i g a t e t h e d e a t h p e n a l t y i n c o u n t r i e s
where i t was s t i l l imposed b y g i v i n g persons sentenced t o d e a t h t h e r i g h t t o
seek pardon o r commutation o f t h e sentence. I n an e a r l i e r d r a f t i t was
s t i p u l a t e d t h a t "anyone sentenced t o d e a t h s h a l l have t h e r i g h t t o seek
amnesty, o r p a r d o n , o r commutation o f t h e sentence." The r e f e r e n c e t o t h e r i g h t
t o seek "amnesty" was d e l e t e d , s i n c e i t was f e l t t h a t , amnesty b e i n g a measure
d e c i d e d p r o p i o motu b y t h e e x e c u t i v e and being i n t h e nature o f a c o l l e c t i v e
p a r d o n , i t was i n a p p r o p r i a t e t o envisage t h a t an i n d i v i d u a l s h o u l d seek it.
I t was g e n e r a l l y agreed, however, t h a t i t was a p p r o p r i a t e t o r e t a i n t h e
r e f e r e n c e t o amnesty i n t h e second sentence o f p a r a g r a p h 3, d e a l i n g w i t h t h e
g r a n t i n g o f amnesty, pardon o r commutation o f d e a t h i n a l l cases.

2/
P r o h i b i t i o n o f t h e e x e c u t i o n o f d e a t h sentence o n a p r e g n a n t woman*
10. I t would seem t h a t t h e i n t e n t i o n o f p a r a g r a p h k, which was i n s p i r e d by
h u m a n i t a r i a n c o n s i d e r a t i o n s and b y c o n s i d e r a t i o n f o r t h e i n t e r e s t s o f t h e unborn
c h i l d , was t h a t t h e death, sentence, i f i t concerned a p r e g n a n t woman, s h o u l d
n o t be c a r r i e d o u t a t a l l . I t was p o i n t e d o u t , however, t h a t t h e p r o v i s i o n ,
i n i t s p r e s e n t f o r m u l a t i o n , , m i g h t be i n t e r p r e t e d as a p p l y i n g s o l e l y t o t h e
period preceding c h i l d b i r t h .

2/ E/CK.VsR.309-311; ESC ( X I I I ) , s u p p l . 9 , annex 3, a r t i c l e 3, p a r a . 4.

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DOCUMENTATION

Organ and Records o f Article

session discussion O t h e r documents number

DC ( I ) E / C N . 4 / A C . 1 / 4 , annex I / a r t . 8 ; 6 ; 11;
E/CN.4/21, annex G, a r t . I

CHR ( I I ) E/CN.4/AC.3/SR.I,2, E/CN.4/56, c h a p . I I , a r t . 4 ; ESC ( V I ) , 1

and 9 ; E / C N . 4 / S R . 3 5 s u p p l . 1 , annex B, p a r t I , a r t . 5; 4
part I I , a r t . 4

DC ( I I ) E/CN /AC,l/SR.22,29 E/CN.4/ACI/19, a r t . 5 ; 3 8 ; E/CN.4/95 4

CHR ( I I I ) E/CN.4/85 5

ESC ( V I I ) E/c.2/88 5

CHR ( V ) E/CN.U/SR.90, 9 1 , E/CN.4/170/Add.5; 1 8 8 , 1 9 3 , 1 9 5 , 2 0 4 , 5

93, 9 4 , 9 7 , 9 8 , 2 3 9 , 2 4 l , 2 5 1 , 2 7 3 ; E/CN.4/W.21, 2 2 ,
1 0 1 , 135 2 3 ; ESC ( I X ) ; s u p p l . 1 0 , annex I , a r t . 5 ,
and annex I I

CHR ( V I ) E/CN.4/SR.139, lUo, E/CN.4/353/Add.l,2,3,6,7,8,9,lO,ll; 5

144, 1 4 9 , 1 5 0 , 152, 65; 371; 378; 383; 384; 385; ' 386;
1 5 3 , 199 3 8 7 ; 3 9 3 ; 3 9 8 ; 4 l 3 ; 4 1 7 ; E/CN.4/L.1,
l 6 ; ESC ( X I ) , s u p p l . 5 , annex I , a r t . 3
and annex I I

ESC ( X I ) E/AC.7/SR.147, 1 4 8 , E/L.68; E/C.2/259 3

149

GA ( V ) 3 r d Com., 2 8 8 t h - 2 9 1 s t GA ( v ) , annexes, a . i . 6 3 , /.3/534 3

mtgs.

CHR ( V I I ) ESC ( X I I I ) , s u p p l . 9 , annex I I I , a r t . 3 ; 3

E/CN.4/515/Add.4,6,12; 5 2 8 , p a r a s .
87-9^

ESC ( X I I I ) E/C.2/SR.IO6 3

CHR ( V I I I ) E/CN.4/SR.309-3H E/CN.4/528/Add.l, p a r a . 5 7 - 6 4 ; 6 6 0 , 3

p a r a . 2 8 ; 6 6 8 and c o r r . l ; E / C N . 4 / L . 1 2 2 ,
1 3 0 , 1 4 0 , 160 and c o r r . l , I 7 6 , 1 7 7 ,
1 7 8 , 1 7 9 , 1 8 0 , 1 8 1 , 1 8 2 ; ESC ( X I V ) ,
s u p p l . 4 , p a r a . 167-17*+ and annex I B,
art. 5

CHR ( X ) E / C N . 4 / 6 9 4 / A d d . 2 , 6 ; 7 0 2 , p.32;
6
702/Add.2, p p . 4 - 5
ESC ( X V I I I ) E/C.2/SR.145 b
GA ( I X ) 3 r d Com., 5 2 , 5 6 6 , 6
5 7 1 , 573
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ARTICLE 7

Inhuman o r d e g r a d i n g treatment

No one s h a l l be s u b j e c t e d t o t o r t u r e o r t o c r u e l ,
inhuman o r d e g r a d i n g t r e a t m e n t o r punishment. I n
p a r t i c u l a r , no one s h a l l be s u b j e c t e d w i t h o u t h i s f r e e
consent t o m e d i c a l o r s c i e n t i f i c e x p e r i m e n t a t i o n
i n v o l v i n g r i s k , where such i s n o t r e q u i r e d b y h i s
state o f p h y s i c a l o r mental h e a l t h .

11. The purpose o f t h i s a r t i c l e i s t o p r o t e c t b o d i l y i n t e g r i t y and human

dignity.

3/
Inhuman o r d e g r a d i n g t r e a t m e n t o r punishment^
12. The f i r s t clause reproduces t h e t e x t o f a r t i c l e 5 o f -che U n i v e r s a l
D e c l a r a t i o n on Human R i g h t s .
The opening words o f a r t i c l e 5 o f t h e D e c l a r a t i o n "No one s h a l l be
s u b j e c t e d " were chosen i n p r e f e r e n c e t o " I t s h a l l be u n l a w f u l t o s u b j e c t " t o
emphasize t h e r i g h t o f t h e i n d i v i d u a l r a t h e r t h a n t h e o b l i g a t i o n o f S t a t e s .
13. The word " t o r t u r e " i n t h i s a r t i c l e was u n d e r s t o o d t o mean b o t h m e n t a l and
physical torture. The c l a u s e p r o h i b i t s n o t o n l y "inhuman" b u t a l s o "degrading"
t r e a t m e n t o r punishment. I t was g e n e r a l l y agreed t h a t t h e word "treatment"
was b r o a d e r i n scope t h a n t h e word "punishment"; however, i t was observed t h a t
t h e word " t r e a t m e n t " should n o t a p p l y t o d e g r a d i n g s i t u a t i o n s w h i c h m i g h t be
due t o g e n e r a l economic and s o c i a l f a c t o r s .

/
Medical o r s c i e n t i f i c experimentation'
Ik. The second clause o f t h e a r t i c l e was i n t e n d e d t o p r e v e n t t h e r e c u r r e n c e o f
a t r o c i t i e s such as those committed i n c o n c e n t r a t i o n camps d u r i n g World War I I .
One o p i n i o n was t h a t improper m e d i c a l o r s c i e n t i f i c e x p e r i m e n t a t i o n was

3/ E/CN /. l/SR-3, 23, 30; E / C N . 4 / A C 3 / S R . 2 ; E/CN.4/SR.37, 6, 92, Ikl;

E/CN.4/l70, 193, 353/Add.1, and 10.
/ E/CN /. I/SR. 23, 30; E/CN.4/AC.3/SR.2; E/cN.ysR.91, 92, lk2, 182,
I83, 311, 312; E/CN.V82/Add.2, / 1 9 2 , 197, 359, 372, 89, 471,
473 , 573] E/CN/L. 159.
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i m p l i c i t l y p r o h i b i t e d i n t h e f i r s t c l a u s e , b u t a n o t h e r v i e w was t h a t t h e t e x t
o f t h a t c l a u s e was n o t s u f f i c i e n t l y p r e c i s e t o p r e v e n t such e x p e r i m e n t s . I t
was f i n a l l y agreed t h a t t h e m a t t e r was so i m p o r t a n t as t o r e q u i r e a s p e c i f i c
p r o v i s i o n , even a t t h e r i s k o f r e p e t i t i o n .
15 I t was c l e a r t h a t e x p e r i m e n t s i n v o l v i n g r i s k s h o u l d n o t , i n p r i n c i p l e , be
c a r r i e d o u t w i t h o u t t h e f r e e consent o f t h e p e r s o n concerned. However, i t was
s a i d t h a t t h e r e m i g h t be e x c e p t i o n s t o t h i s p r i n c i p l e where t h e i n t e r e s t s o f
t h e h e a l t h o f t h e i n d i v i d u a l o r t h e community were i n v o l v e d . The e x t e n t o f
such e x c e p t i o n s gave r i s e t o some d i s c u s s i o n . On t h e one hand i t was t h o u g h t
t h a t i t s h o u l d n o t be l e f t e n t i r e l y t o n a t i o n a l laws t o d e f i n e them. On t h e
o t h e r hand i t was r e a l i z e d t h a t i t would be d i f f i c u l t t o draw up a complete
l i s t o f c r i t e r i a f o r p e r m i t t i n g e x p e r i m e n t a t i o n w i t h o u t t h e f r e e consent o f
t h e i n d i v i d u a l concerned. There was g e n e r a l agreement t h a t f a i l u r e t o o b t a i n
t h e consent o f a s i c k , sometimes u n c o n s c i o u s , p e r s o n s h o u l d n o t make any
dangerous e x p e r i m e n t a t i o n i l l e g a l where "such was r e q u i r e d by his state o f
physical o r mental h e a l t h " . A p r o p o s a l t h a t compulsory measures m i g h t be t a k e n
" i n t h e i n t e r e s t o f community h e a l t h " was r e j e c t e d on t h e grounds t h a t i t m i g h t
l e a d t o abuse.
l6. A p r o p o s a l t h a t " i n a d d i t i o n t o t h e consent o f t h e p e r s o n i n q u e s t i o n , t h e
a p p r o v a l o f a h i g h e r m e d i c a l i n s t i t u t i o n d e s i g n a t e d b y l a w s h a l l be required
b e f o r e / s u c h / e x p e r i m e n t a t i o n i s c a r r i e d o u t " was n o t adopted. Such a c l a u s e
was c o n s i d e r e d t o be more i n t h e n a t u r e o f a r e g u l a t i o n t h a n an a p p r o p r i a t e
p r o v i s i o n f o r i n c l u s i o n i n t h e covenant.
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DOCUMENTATION

Organ and Article

session Records o f d i s c u s s i o n Other documents number

DC ( I ) E/CN.VAC.I/SR.3, 1 0
> 1 6
E/CN /. 1 A / A d d . 1; E/CN.V21,
annex A, a r t . 4 , annex C,
a r t s . 9 and 10, annex G, a r t . 2

CHR ( I I ) E/CN. VAC .3/SR. 2; E/CN.U/37, 39; 56, a r t s . 5 and 2

E/CN.VSR.37, ^ 2 6; ESC ( V l ) , suppl.1, annex B,
a r t s . 6 and 7

DC ( I I ) E/CN.VAC.I/SR.23, 30 E/CN-V82/Add.2, k, 8, 9, 11; 6, 7

E/CN.V95, annex B, a r t s . 6
and 7

CHR ( I I I ) E/CN.V89 6, 7

CHR ( V ) E/CN.VsR.91, 9 2
E/CN.V170 and Add.2 and k, 6, 7
E/CN.V188, ! 9 ; 19 197;
2

ESC ( I X ) , suppl.10, annex I

a r t s . 6 and 7

CHR ( V I ) E/CN.VSR-lM, 1^2, E/CN.U/353/Add.l, 3, 1, 10, 11; 6, 7

182, I 8 3 , 199 E/CN.V359, 372, 381, 389, V l ,
472, 473; E/CN.VNGO/9;
ESC ( X l ) , s u p p l . 5 , annex I ,
a r t . h, annex I I , a r t . k

ESC ( X I ) E/AC.7/SR.1U8, li+9 E/C.2/268 k

GA ( V ) 3rd com., 290th, k

296th mtgs.

ESC ( X I I ) E/C.2/285 k

CHR ( V I I ) E/CN.V515/Add.2, 13; h

E/CN.V523, 528, p a r a s . 95-,
E/CN.V563 and A d d . l ,
E/CN.V573; E/CN.VNGO/17, > 2 0

30; ESC ( X I I I ) , s u p p l . 9 ,
annex I I I , a r t . it-

ESC ( X I I I ) E/C.2/SR.IO6 k
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DOCUMENTATION ( c o n t ' d )

Organ and Article

session Records o f d i s c u s s i o n Other documents number

CHR ( V I I I ) E/'CN.4/SR.311, 312 E/CN.U/528/Md.l, P a r a s . 65-68; 4

E/CN.VL.159; E/CN.k/NGOfrk,
39; ESC ( X I V ) suppl.4,
p a r a s . 175-177, annex I B ,
art. 6

CHR ( X ) E/CN.i+/69VAdd.6, 1
E/CN.4/702, s e c t i o n s I I I , V I I ,
X I I I , X V I , XXI

GA ( I X ) 3rd com., 565th, 7

569th mtgs.
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ARTICLE 8

P r o h i b i t i o n o f s l a v e r y , s e r v i t u d e and f o r c e d labour

1. No one s h a l l be h e l d i n s l a v e r y ; s l a v e r y and t h e s l a v e
t r a d e i n a l l t h e i r forms s h a l l be p r o h i b i t e d .

2. No one s h a l l be h e l d i n s e r v i t u d e .

3- ( a ) No one s h a l l be r e q u i r e d t o p e r f o r m f o r c e d o r
compulsory l a b o u r ;

( b ) The p r e c e d i n g sub-paragraph, s h a l l n o t be h e l d t o
p r e c l u d e , i n c o u n t r i e s where imprisonment w i t h h a r d l a b o u r
may be imposed as a punishment f o r a c r i m e , t h e
performance o f h a r d l a b o u r i n pursuance o f a sentence t o
such punishment b y a competent c o u r t ;

(c) F o r t h e purpose o f t h i s p a r a g r a p h t h e t e r m " f o r c e d o r

compulsory l a b o u r " s h a l l n o t i n c l u d e :

(i) Any work o r s e r v i c e , n o t r e f e r r e d t o i n sub-

p a r a g r a p h ( b ) , n o r m a l l y r e q u i r e d o f a p e r s o n who
i s under d e t e n t i o n i n consequence o f a l a w f u l
order o f a court;

(ii) Any s e r v i c e o f a m i l i t a r y c h a r a c t e r and, i n

c o u n t r i e s where c o n s c i e n t i o u s o b j e c t i o n i s
r e c o g n i z e d , any n a t i o n a l s e r v i c e r e q u i r e d by
law o f c o n s c i e n t i o u s o b j e c t o r s ;

(iii) Any s e r v i c e e x a c t e d i n cases o f emergency o r

calamity threatening the l i f e or well-being
o f t h e community;

(iv) Any work o r s e r v i c e w h i c h forms p a r t o f normal

civic obligations.

Slavery

17- I t may be n o t e d t h a t a r t i c l e k o f t h e U n i v e r s a l D e c l a r a t i o n o f Human

R i g h t s p r o v i d e s t h a t "no one s h a l l be h e l d i n s l a v e r y and s e r v i t u d e , " w h i l e t h e
f i r s t paragraph o f t h i s a r t i c l e deals only w i t h slavery. I ndrafting the
covenant, t h e p o i n t was made and accepted t h a t " s l a v e r y " and " s e r v i t u d e " were
two d i f f e r e n t concepts and s h o u l d be d e a l t w i t h i n two separate p a r a g r a p h s . A
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s u g g e s t i o n was made t o s u b s t i t u t e " t r a d e i n human b e i n g s " f o r " s l a v e t r a d e " i n

o r d e r t h a t p a r a g r a p h 1 w o u l d cover t r a f f i c i n women as w e l l ; i t was n o t
a c c e p t e d , f o r i t was t h o u g h t t h a t t h e c l a u s e s h o u l d d e a l o n l y w i t h s l a v e trade
as such.

Servitude

18. I n discussing p a r a g r a p h 2 i t was p o i n t e d o u t t h a t s l a v e r y , w h i c h i m p l i e d

t h e d e s t r u c t i o n o f the j u r i d i c a l p e r s o n a l i t y , was a r e l a t i v e l y l i m i t e d and
t e c h n i c a l n o t i o n , whereas s e r v i t u d e was a more g e n e r a l i d e a c o v e r i n g a l l
possible forms o f man's d o m i n a t i o n o f man. While s l a v e r y was the b e s t known and
the w o r s t f o r m o f bondage, o t h e r forms e x i s t e d i n modern s o c i e t y w h i c h t e n d e d t o
reduce t h e d i g n i t y o f man. A s u g g e s t i o n t o s u b s t i t u t e the words "peonage and
serfdom" f o r " s e r v i t u d e " was r e j e c t e d as those words were t o o l i m i t e d i n scope
and had no p r e c i s e meaning. A p r o p o s a l was a l s o made t o i n s e r t t h e word
" i n v o l u n t a r y " b e f o r e " s e r v i t u d e " i n o r d e r t o make i t c l e a r t h a t t h e c l a u s e
d e a l t w i t h compulsory s e r v i t u d e and d i d n o t a p p l y t o normal contractual
o b l i g a t i o n s between persons competent t o e n t e r i n t o such o b l i g a t i o n s . The
p r o p o s a l was opposed on t h e ground t h a t s e r v i t u d e i n any f o r m , whether
i n v o l u n t a r y o r n o t , s h o u l d be p r o h i b i t e d . I t s h o u l d n o t be made p o s s i b l e for
any p e r s o n t o c o n t r a c t h i m s e l f i n t o bondage.
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F o r c e d o r compulsory l a b o u r

19- The q u e s t i o n was r a i s e d whether t h e t e r m " f o r c e d o r compulsory l a b o u r " i n

sub-paragraph ( a ) o f p a r a g r a p h 3 s h o u l d be d e f i n e d . Reference was made t o
a r t i c l e 2 o f t h e I n t e r n a t i o n a l Labour Convention on Forced o r Compulsory Labour
o f 28 June 19./ Paragraph 1 o f t h a t a r t i c l e d e f i n e d t h e t e r m " f o r c e d o r
compulsory l a b o u r " as meaning " a l l work o r s e r v i c e w h i c h i s e x a c t e d f r o m any
p e r s o n under t h e menace o f any p e n a l t y and f o r w h i c h t h e s a i d p e r s o n has n o t
offered himself v o l u n t a r i l y " . Paragraph 2 l i s t e d a number o f e x c e p t i o n s . This
d e f i n i t i o n , e s p e c i a l l y when r e a d i n t h e l i g h t o f t h e e x c e p t i o n s , was n o t
c o n s i d e r e d e n t i r e l y s a t i s f a c t o r y f o r i n c l u s i o n i n t h e covenant.
20. I n a f i r s t d r a f t , i t was p r o v i d e d t h a t "no one s h a l l be r e q u i r e d t o p e r f o r m
f o r c e d o r compulsory l a b o u r e x c e p t p u r s u a n t t o a sentence t o such punishment f o r
a crime b y a competent c o u r t " . The p r o v i s o "except p u r s u a n t t o a sentence t o
such punishment f o r a crime b y a competent c o u r t " was d e l e t e d , f o r i t i m p l i e d
t h a t f o r c e d o r compulsory l a b o u r c o u l d be imposed upon a p e r s o n p u r s u a n t t o a
c o u r t sentence. I t was f e a r e d t h a t such a c l a u s e m i g h t p r o v i d e a l o o p h o l e and
would r e n d e r t h e guarantee i n e f f e c t i v e . However, i t was r e c o g n i z e d t h a t

5/ I t w i l l be r e c a l l e d t h a t i n accordance w i t h r e s o l u t i o n 350 ( X l l ) o f
19 March 1951 o f t h e Economic and S o c i a l C o u n c i l , an Ad Hoc Committee on
F o r c e d Labour was e s t a b l i s h e d " t o s t u d y t h e n a t u r e and e x t e n t o f t h e
p r o b l e m r a i s e d b y t h e e x i s t e n c e i n t h e w o r l d o f systems o f f o r c e d o r
' c o r r e c t i v e ' l a b o u r " . The Ad Hoc Committee s u b m i t t e d i t s r e p o r t (E/2431)
t o t h e Economic and S o c i a l C o u n c i l and t h e ILO i n 1953 I n
r e s o l u t i o n 524 ( X V I I ) o f 27 A p r i l 1954, t h e C o u n c i l , i n t e r a l i a ,
condemned "systems o f f o r c e d l a b o u r w h i c h a r e employed as a means o f
p o l i t i c a l c o e r c i o n o r punishment f o r h o l d i n g o r e x p r e s s i n g p o l i t i c a l
v i e w s , and w h i c h a r e on such a s c a l e a s . t o c o n s t i t u t e an i m p o r t a n t
element i n t h e economy o f a g i v e n c o u n t r y " and appealed t o " a l l
Governments t o re-examine t h e i r laws and a d m i n i s t r a t i v e p r a c t i c e s i n t h e
l i g h t o f p r e s e n t c o n d i t i o n s and t h e i n c r e a s i n g d e s i r e o f t h e peoples o f
t h e w o r l d t o r e a f f i r m f a i t h i n f u n d a m e n t a l human r i g h t s and i n t h e
d i g n i t y and w o r t h o f t h e human p e r s o n " . The General Assembly, i n
r e s o l u t i o n 842 ( I X ) o f 17 December 1954, endorsed t h e condemnation b y t h e
C o u n c i l o f t h e e x i s t e n c e o f systems o f f o r c e d l a b o u r and expressed i t s
s u p p o r t o f t h e C o u n c i l ' s appeal t o governments.

6/ E/CN.4/234.
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imprisonment w i t h " h a r d l a b o u r " e x i s t e d as a f o r m o f p e n a l t y under t h e p e n a l

systems o f seme c o u n t r i e s . I t was t h e r e f o r e t h o u g h t necessary t o i n c l u d e a
s u i t a b l e p r o v i s i o n w h i c h would t a k e such systems i n t o a c c o u n t .
21. Thus, under sub-paragraph ( b ) , i t i s p r o v i d e d t h a t t h e p r o h i b i t i o n o f f o r c e d
or ccmpulsory l a b o u r " s h a l l n o t be h e l d t o p r e c l u d e , i n c o u n t r i e s where
imprisonment w i t h h a r d l a b o u r may be imposed as a punishment f o r a c r i m e , t h e
performance o f h a r d l a b o u r i n pursuance o f a sentence t o such punishment b y a
competent c o u r t " . The words " i n pursuance o f a sentence t o such punishment b y a
competent c o u r t " were i n t e n d e d t o i n d i c a t e t h a t t h e performance o f h a r d l a b o u r
c o u l d be r e q u i r e d o n l y i f e x p l i c i t l y s t a t e d i n t h e sentence o f t h e c o u r t . I n an
e a r l i e r d r a f t t h e words " h a r d l a b o u r " were i n q u o t a t i o n marks, b u t i t was
s u b s e q u e n t l y d e c i d e d t o d e l e t e t h e q u o t a t i o n marks, f o r t h e e x p r e s s i o n " h a r d
l a b o u r " when used between q u o t a t i o n marks m i g h t i m p l y some s p e c i a l punishment.
O b j e c t i o n was r a i s e d t o t h e use o f t h e t e r m "punishment". I t was m a i n t a i n e d t h a t
the concept o f "punishment" was outmoded and was no l o n g e r r e c o g n i z e d i n modern
criminology. I t was a l s o suggested t h a t t h e c l a u s e s h o u l d i n d i c a t e t h a t persons
f o u n d g u i l t y o f " p o l i t i c a l " crimes s h o u l d n o t be sentenced t o " h a r d l a b o u r " .

The s u g g e s t i o n was opposed, however, on t h e ground t h a t t h e r e was no e x a c t

d e f i n i t i o n o f t h e t e r m " p o l i t i c a l c r i m e " , and i t s i n t e r p r e t a t i o n v a r i e d f r o m
one c o u n t r y t o a n o t h e r .
22. Sub-paragraph ( c ) enumerates, i n f o u r sub-paragraphs, t h e k i n d s o f work o r
s e r v i c e n o t deemed i n c l u d e d w i t h i n t h e t e r m " f o r c e d o r ccmpulsory l a b o u r " .
Sub-paragraph ( i ) was i n t e n d e d t o cover o r d i n a r y p r i s o n work w h i c h persons under
d e t e n t i o n p u r s u a n t t o a c o u r t o r d e r m i g h t be r e q u i r e d t o do. T h i s would i n c l u d e
r o u t i n e work p e r f o r m e d i n t h e course o f d e t e n t i o n and work done t o promote t h e
delinquent's r e h a b i l i t a t i o n . The c l a u s e s p e c i f i c a l l y e x c l u d e d performance o f
" h a r d l a b o u r " as t h e t e r m was used i n sub-paragraph ( b ) . The phrase " n o r m a l l y
r e q u i r e d o f a person who i s under d e t e n t i o n " was i n t e n d e d t o b r i n g o u t t h e f a c t
t h a t t h e c l a u s e was i n t e n d e d t o r e f e r t o work o r d i n a r i l y done b y p r i s o n e r s and n o t
to hard labour. I t was a l s o e x p l a i n e d t h a t t h e i n c l u s i o n o f t h e word " n o r m a l l y "
provided a safeguard against a r b i t r a r y decisions by p r i s o n a u t h o r i t i e s w i t h
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r e g a r d t o t h e work w h i c h m i g h t he r e q u i r e d o f persons under d e t e n t i o n . Cn t h e

o t h e r hand, i t was p o i n t e d o u t t h a t t h e i n s e r t i o n o f t h e word " n o r m a l l y " was
u s e l e s s and r e s t r i c t i v e . I n some s p e c i a l circumstances p r i s o n a u t h o r i t i e s might
f i n d i t necessary t o g i v e persons under d e t e n t i o n work t h a t was d i f f e r e n t from
t h e i r customary l a b o u r . There was some q u e s t i o n a l s o r e g a r d i n g t h e meaning o f
the term " d e t e n t i o n " . I t was e x p l a i n e d t h a t t h e t e r m covered a l l forms o f
compulsory r e s i d e n c e i n i n s t i t u t i o n s i n consequence o f a c o u r t o r d e r .
23. I n sub-paragraph ( i i ) t h e c l a u s e r e l a t i n g t o c o n s c i e n t i o u s o b j e c t o r s was
i n t e n d e d t o i n d i c a t e t h a t any n a t i o n a l s e r v i c e r e q u i r e d o f them b y l a w would
n o t f a l l w i t h i n t h e scope o f f o r c e d o r compulsory l a b o u r . As t h e concept o f
c o n s c i e n t i o u s o b j e c t i o n was n o t r e c o g n i z e d i n many c o u n t r i e s , t h e phrase " i n
c o u n t r i e s where c o n s c i e n t i o u s o b j e c t i o n i s r e c o g n i z e d " was i n s e r t e d . Proposals
t o t h e e f f e c t t h a t s e r v i c e s o f c o n s c i e n t i o u s o b j e c t o r s "be c a r r i e d o u t i n
c o n d i t i o n s e q u a l t o those accorded t o a l l .other c i t i z e n s s u b j e c t e d t h e r e t o " and
t h a t such s e r v i c e s "he compensated w i t h maintenance and pay n o t i n f e r i o r t o what
a s o l d i e r o f t h e l o w e s t r a n k r e c e i v e s " were r e j e c t e d . Those who supported t h e
p r o p o s a l s p o i n t e d o u t t h a t i n c e r t a i n c o u n t r i e s where c o n s c i e n t i o u s o b j e c t o r s
were r e l e a s e d f r o m m i l i t a r y o b l i g a t i o n s , t h e y were s u b j e c t e d t o t r e a t m e n t
i n c o n s i s t e n t w i t h human d i g n i t y ; hence i t was e s s e n t i a l t o p r o v i d e some minimum
safeguards. On t h e o t h e r hand, those who opposed t h e p r o p o s a l s argued t h a t i t
was i n a p p r o p r i a t e t o go i n t o d e t a i l s c o n c e r n i n g t h e t r e a t m e n t o f c o n s c i e n t i o u s
objectors.

2k. Sub-paragraph ( i i i ) d i d n o t g i v e r i s e t o d e b a t e .
25. There was c o n s i d e r a b l e d i s c u s s i o n as t o whether "minor communal s e r v i c e s "
s h o u l d n o t a l s o be i n c l u d e d i n t h e p r o v i s i o n s o f sub-paragraph ( i v ) . I t was
p o i n t e d o u t t h a t t h e I n t e r n a t i o n a l Labour Convention on Forced o r Compulsory
Labour i n c l u d e d p r o v i s i o n s c o n c e r n i n g "normal c i v i c o b l i g a t i o n s " and "minor
communal s e r v i c e s " . The p r o v i s i o n c o n c e r n i n g "minor communal s e r v i c e s " was meant
t o a p p l y t o n o n - s e l f - g o v e r n i n g t e r r i t o r i e s , w h i l e t h a t r e l a t i n g t o "normal c i v i c
o b l i g a t i o n s " a p p l i e d t o sovereign States. I t was contended, however, t h a t t h e
d i s t i n c t i o n was unacceptable and s h o u l d n o t be p e r p e t u a t e d i n t h e covenant.
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F u r t h e r m o r e , i t was p o i n t e d o u t t h a t t h e ILO i t s e l f , i n a proposed t e x t w h i c h

i t had communicated t o t h e Commission,-^ had suggested t h a t "minor communal
s e r v i c e s " s h o u l d he a b o l i s h e d i n t h e s h o r t e s t t i m e p o s s i b l e . The o p i n i o n was
a l s o expressed t h a t i t was n o t necessary t o m e n t i o n "minor communal s e r v i c e s "
s i n c e t h e t e r m "normal c i v i c o b l i g a t i o n s " was a much b r o a d e r t e r m and would
include t h e former.

7/ //158.
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DOCUMENTATION

Organ and Article

session Records o f d i s c u s s i o n Other documents number

DC ( I ) E/CN.4/AC.1/SR.2, 4, 8, S/CN.4/AC.1/8 and R e v . l ; 11;

10, 13 E/CN.4/21, annex , p a r t I I ,
a r t . 8, and annex G a r t . 3

CHR ( I I ) E/CN.4/C3/SR.2, 7; E/CN.4/56, a r t . 7; E/C.2/2; 4

E/CN.4/SR-37 ESC ( V l ) , s u p p l . 1 , annex , 7
p a r t s I and I I , a r t . 8

DC ( I I ) E/CN.4/AC.1/SR.24, 28, E/CN.4/AC.1/19; 22, 25 and A d d . l ; 8

30 E/CN.4/95

CHR ( I I I ) E/CN.4/82/Add. 7, 8, 11, 12; 85 8

CHR ( V ) E/CN.V92, 93, 9b, E/CN.4/158; 170/Add. 3, 4; 202; 8

103, 4, 135 202/Rev.l; 205-208: 210: 234; 239;
254; 256; 257; 26l; 22; 29; 270;
273; ESC ( I V ) , suppl.10, annex I ,
art. 8

CHR ( V I ) E/CN .4/SR. l 4 2 , l 4 5 , E/CN.4/353/Add. 1, 2, 3, 10; 365; 8

148, 149, 154, 199 388; 390; 391; ^04; 4C8;
S/CN.4/L.2/Rev.l; L.10; L . l 6 ;
E/CN.4/NG0.1; ESC ( X l ) , s u p p l . 5,
annex I , a r t . 5

ESC ( X I ) E/AC7/SR.148 E/L.68 5

GA ( V ) 3rd Com., 289th- 5

291st mtgs.

CHR ( V I I ) E/CN.4/515/Add.6; 528, p a r a s . 101- 5

108

CHR ( V I I I ) E/CN.4/SR.312, 31 E/CN.4/528/Add.l, p a r a s . 69-7O; 5

668/Add.2; E/CN.4/L.158 and R e v . l ;
ESC ( X I V ) , s u p p l . 4 , p a r a s . 178-
179J annex I B , a r t . 7

ESC ( X V I ) E/C.2/365 8

CHR ( X ) E/CN.4/694/Add - 5; 702/Add.3 8

GA ( I X ) 3rd Com., 565th; 8

569th mtgs.
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ARTICLE 9

L i b e r t y and s e c u r i t y o f p e r s o n

1. Everyone has t h e r i g h t t o l i b e r t y and s e c u r i t y o f person.

No one s h a l l be s u b j e c t e d t o a r b i t r a r y a r r e s t o r d e t e n t i o n .
No one s h a l l be d e p r i v e d o f h i s l i b e r t y e x c e p t on such grounds
and i n accordance w i t h such p r o c e d u r e as a r e e s t a b l i s h e d b y
law.

2. Anyone who i s a r r e s t e d s h a l l be i n f o r m e d , a t t h e time o f

a r r e s t , o f t h e reasons f o r h i s a r r e s t and s h a l l be p r o m p t l y
i n f o r m e d o f any charges a g a i n s t h i m .

3 Anyone a r r e s t e d o r d e t a i n e d on a c r i m i n a l charge s h a l l be
b r o u g h t p r o m p t l y b e f o r e a judge o r o t h e r o f f i c e r a u t h o r i z e d b y
law t o e x e r c i s e j u d i c i a l power and s h a l l be e n t i t l e d t o t r i a l
w i t h i n a reasonable t i m e o r t o r e l e a s e . I t s h a l l n o t be t h e
g e n e r a l r u l e t h a t persons a w a i t i n g t r i a l s h a l l be d e t a i n e d i n
c u s t o d y , b u t r e l e a s e may be s u b j e c t t o guarantees t o appear
f o r t r i a l , a t any o t h e r stage o f t h e j u d i c i a l p r o c e e d i n g s ,
and, should o c c a s i o n a r i s e , f o r e x e c u t i o n o f t h e judgment.

h. Anyone who i s d e p r i v e d o f h i s l i b e r t y b y a r r e s t o r
d e t e n t i o n s h a l l be e n t i t l e d t o t a k e p r o c e e d i n g s b e f o r e a c o u r t ,
i n o r d e r t h a t such c o u r t may decide w i t h o u t d e l a y on t h e
l a w f u l n e s s o f -his d e t e n t i o n and o r d e r h i s r e l e a s e i f t h e
detention i s not lawful.

5 Anyone who has been t h e v i c t i m o f u n l a w f u l a r r e s t o r

d e p r i v a t i o n o f l i b e r t y s h a l l have an e n f o r c e a b l e r i g h t t o
compensation.

26. T h i s a r t i c l e b e g i n s b y s e t t i n g f o r t h i n p o s i t i v e t e r m s , borrowed f r o m
a r t i c l e 3 o f t h e U n i v e r s a l D e c l a r a t i o n o f Human R i g h t s , t h e r i g h t o f everyone
to l i b e r t y and s e c u r i t y o f p e r s o n . ^ There was some o b j e c t i o n t h a t t h e
d e c l a r a t o r y c h a r a c t e r o f t h i s clause made i t i n a p p r o p r i a t e f o r i n c l u s i o n i n a
l e g a l instrument.

8/ ESC ( X I I I ) , s u p p l . 9 , annex I I I , a r t . 6; /-^

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l i m i t a t i o n s clause-^

27- I t was g e n e r a l l y a d m i t t e d t h a t t h e r i g h t t o l i b e r t y and s e c u r i t y o f p e r s o n

m i g h t be s u b j e c t t o r e s t r i c t i o n s , b u t t h e terms i n w h i c h such r e s t r i c t i o n s
should be d r a f t e d gave r i s e t o d i s c u s s i o n .
28. Proposals were made l i s t i n g t h e p o s s i b l e grounds on w h i c h d e p r i v a t i o n o f
l i b e r t y m i g h t be j u s t i f i e d . However, i t seemed u n l i k e l y t h a t any l i s t proposed,
whether r e s t r i c t e d t o some t w e l v e grounds as i n c e r t a i n p r o p o s a l s o r expanded t o
i n c l u d e about f o r t y grounds suggested c o u l d cover a l l p o s s i b l e cases o f
legitimate arrest or detention. On t h e o t h e r hand, i t was s a i d t h a t even i f such
a l i s t c o u l d be made complete, i t s a d o p t i o n m i g h t n o t be c o n s i d e r e d d e s i r a b l e :
the covenant s h o u l d n o t g i v e t h e i m p r e s s i o n o f b e i n g a c a t a l o g u e o f r e s t r i c t i o n s
to t h e r i g h t s which i t set f o r t h .
29. The meaning o f t h e g e n e r a l r e s t r i c t i v e c l a u s e , i n c o r p o r a t e d i n t h e l a s t two
sentences o f p a r a g r a p h 1, would seem t o depend l a r g e l y on t h e i n t e r p r e t a t i o n t o
be g i v e n t o t h e word " a r b i t r a r y " . I t was u n d e r s t o o d , a c c o r d i n g t o d i f f e r e n t
schools o f t h o u g h t , t o mean e i t h e r " i l l e g a l " , o r " u n j u s t " , o r " b o t h i l l e g a l and
unjust".
30. One o p i n i o n was t h a t " a r b i t r a r y " was synonymous w i t h " c o n t r a r y t o t h e
national legislation"; i f such were t h e case, i t was emphasized, t h e t h i r d
sentence i n p a r a g r a p h 1, "No one s h a l l be d e p r i v e d o f h i s l i b e r t y except on such
grounds and i n accordance w i t h such p r o c e d u r e as a r e e s t a b l i s h e d b y law", would
seem t o be a r e p e t i t i o n o f t h e second sentence.
31. On t h e o t h e r hand, i t was argued t h a t b y u s i n g t h e word " a r b i t r a r y " a l l
l e g i s l a t i o n would have t o conform t o t h e p r i n c i p l e o f j u s t i c e . On t h e b a s i s o f
such a n i n t e r p r e t a t i o n , t h e t h i r d sentence o f t h e f i r s t p a r a g r a p h would q u a l i f y
the f u n d a m e n t a l i d e a s e t f o r t h i n t h e second sentence : t h e d e p r i v a t i o n o f
l i b e r t y s h o u l d n o t o n l y conform t o t h e p r i n c i p l e o f j u s t i c e , i t s h o u l d a l s o be
on such grounds and i n accordance w i t h such p r o c e d u r e as a r e e s t a b l i s h e d b y l a w

9/ E/CN /. I/SR. 23, 32; E/CN.4/AC.3/SR.3; E/CN.4/SR.95, 96, ikk, ik6, ikj,
31k; //95, annex B, a r t . 9, E/CN.4/l70/Add.1, E/CN.U/188, 231, 235,
1+01, U02, 405/Rev.l, E/CN.4/523; E / C N . 4 / L . 1 3 7 , 1 8 3 ; ESC ( I X ) , suppl.10,
annex I I , a r t . 9; ESC ( X l ) , s u p p l . 5 , annex I I , a r t . ; /-7/SR.148;
GA, 3rd Com., 288th, 289th, 290th, 291st and 52nd mtgs.
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32. I n t h e course o f t h e debate i t was s a i d t h a t n a t i o n a l l e g i s l a t i o n m i g h t a t

t i m e s be a r b i t r a r y ; i t was s a i d t h e r e f o r e t h a t t h e t h i r d sentence i n p a r a g r a p h 1
s h o u l d be r e a d and u n d e r s t o o d i n t h e l i g h t o f t h e second sentence.

Guarantee o f p e r s o n a l l i b e r t y i n connexion w i t h any a r r e s t o r d e t e n t i o n

33= The purpose o f paragraphs 2 , k and 5 o f t h i s a r t i c l e i s t o d e f i n e certain

guarantees w h i c h must a p p l y i n case o f any a r r e s t o r d e t e n t i o n .
34. W i t h r e g a r d t o p a r a g r a p h 2 , ' ' i t was a d m i t t e d on t h e one hand, t h a t , i n t h e
i n t e r e s t o f t h e a r r e s t e d p e r s o n , competent a u t h o r i t i e s s h o u l d have s u f f i c i e n t
t i m e t o p r e p a r e a d e t a i l e d b r i e f o f t h e charges a g a i n s t him; t h i s period of
t i m e , however, s h o u l d be as s h o r t as p o s s i b l e . On t h e o t h e r hand, t h e p e r s o n
concerned s h o u l d be i n f o r m e d o f t h e reasons f o r h i s a r r e s t a t t h e t i m e he was
arrested.
35- The p r i n c i p l e e n u n c i a t e d i n p a r a g r a p h 4 , ^ ^ a c c o r d i n g t o w h i c h anyone who i s
d e p r i v e d o f h i s l i b e r t y s h a l l be e n t i t l e d t o t a k e p r o c e e d i n g s b e f o r e a c o u r t i n
o r d e r t h a t such c o u r t may d e c i d e on t h e l a w f u l n e s s o f h i s d e t e n t i o n , d i d n o t
g i v e r i s e t o much d i s c u s s i o n . The words " i n t h e n a t u r e o f habeas c o r p u s " w h i c h
appeared i n e a r l i e r d r a f t s were d e l e t e d i n o r d e r t o s p e c i f y t h a t S t a t e s must be
f r e e t o a l l o w f o r such a r i g h t o f a p p e a l w i t h i n t h e framework o f t h e i r own
legal systems.

36. <
The d i s c u s s i o n on p a r a g r a p h jr^revealed a d e s i r e t o e s t a b l i s h an e f f e c t i v e
r i g h t t o compensation f o r i l l e g a l a r r e s t o r d e p r i v a t i o n o f l i b e r t y . The r i g h t t o

10/ S/CN.k/AC .3/SR.3 ; E/CN.VSR.98, 9 9 ; 1^5, 3 1 4 ; E/CN.V399, ; ESC ( X I I l )

s u p p l . 9 , annex I I I , a r t . - 6 .
11/ E / C N . V A C . I / S R . 2 3 ; E / C N . V A C . 3 / S R . 6 ; //SR-lOO, 1^7, 3 l 4 ; E/CN.U/l70,
1 8 8 , 3 5 3 / A d d . l , 515/Add.2; E / C N . 1 + / L . 1 5 1 ; GA, 3 r d Com., 2 8 9 t h mtg.
L2/ E / C N A / A C . 1 / S R . 2 ; / . / S R . k ; E/CN.4/SR.102, ikj, l48, 3 l 4 ;
//353/Add.l; / / 3 9 4 ; E/CN.U/L.131; E / A C 7 / S R . l 4 9 .
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compensation, s e t f o r t h i n g e n e r a l t e r m s , would seem l i k e l y t o he i n v o k e d

a g a i n s t i n d i v i d u a l s as w e l l as a g a i n s t t h e S t a t e as a l e g a l person. I t was n o t e d
t h a t i n c e r t a i n c o u n t r i e s t h e c i v i l r e s p o n s i b i l i t y o f i n d i v i d u a l s alone f o r
m a l i c i o u s o r g r o s s l y n e g l i g e n t conduct was l e g a l l y r e c o g n i z e d . However, t h e words
proposed i n o r d e r t o adapt p a r a g r a p h 5 t o such l e g a l systems "... a r i g h t o f
a c t i o n f o r compensation a g a i n s t any i n d i v i d u a l who b y h i s m a l i c i o u s o r g r o s s l y
n e g l i g e n t conduct d i r e c t l y caused t h e u n l a w f u l a r r e s t o r d e t e n t i o n " , were n o t
accepted.

13 /
Guarantees i n f a v o u r o f persons a r r e s t e d o r d e t a i n e d on a c r i m i n a l charge
37- 'Paragraph 3 o f t h i s a r t i c l e e s t a b l i s h e s s p e c i a l guarantees i n f a v o u r o f
persons a r r e s t e d o r d e t a i n e d on a c r i m i n a l charge. The accused s h a l l be b r o u g h t
t o t r i a l " w i t h i n a. reasonable time"; i t was c o n s i d e r e d necessary t o adopt
t h i s wording i n o r d e r t o a l l o w t h e competent a u t h o r i t i e s t o examine t h e charge
s e r i o u s l y , w i t h o u t , however, any u n j u s t i f i e d d e l a y .
38. The l a s t sentence o f p a r a g r a p h 3 s t a t e s t h a t " i t s h a l l n o t be t h e g e n e r a l
r u l e t h a t persons a w a i t i n g t r i a l s h a l l be d e t a i n e d i n c u s t o d y " . I t was a d m i t t e d
t h a t r e l e a s e m i g h t be s u b j e c t t o c e r t a i n guarantees. The o b j e c t i o n was r a i s e d
t h a t i n c e r t a i n s e r i o u s cases, r e l e a s e , even under guarantees, s h o u l d n o t be
allowed; a p r o p o s a l t o i n s e r t such an e x c e p t i o n i n p a r a g r a p h 3 was, however,
rejected. I t was made c l e a r t h a t t h e a r t i c l e a l l o w s S t a t e s p a r t i e s t o p r o v i d e
for guarantees o t h e r t h a n those o f a p u r e l y f i n a n c i a l c h a r a c t e r . I t was s t i p u l a t e d
t h a t r e l e a s e s u b j e c t t o guarantees m i g h t a p p l y a t any stage o f t h e j u d i c i a l
proceedings.

13/ E/'CN.U/AC3/SR.3; E/CN.U/SR.99, 100, 101, 147, 154, 314; E/CN.k/l70, 188,
250, 260, 353/Add.8, 515/Add.4; / / . 1 3 7 , L-151; E S C ( X I I l ) , suppl.9,
annex I I I , a r t . 6.
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DOCUMENTATION

Organs and Article

sessions Records o f d i s c u s s i o n s Other documents number

DC ( I ) E/CN.4/AC.1/SR.2 E/CN.4/21 annex A, a r t . 7, annex

B, a r t . 10, annex G, a r t . 4

CHR ( I I ) E / C N . 4 / A C 3 / S R . 3 , 4, 6, 9; S A I N A R , 39; E/CN.4/56, a r t . 8; 4

E/CN.4/SR.36 ESC ( V I ) s u p p l . 1 , annex B I I ,
art. 9

DC ( I I ) E / C N . 4 / A C . 1 / S R . 2 3 , 32 E/CN/.I/19, 23 and A d d . l and 9

2; E/CN.4/AC.1/31; E/CN.4/82 and
Add.2, 3, 4, 3, 7, 8, 11, 12;
E/CN.4/95, annex B, a r t . 9

CHR ( I I I ) E/CN.4/89 9

CHR ( V ) E/CN.4/SR.95, 96, 98, 99, E/CN.4/l70 and Add.4, E/CN.4/l88, 9

100, 101, 102 198, 200, 201, 203, 20, 23I,
235, 25O, 252, 259, 260, 266;
ESC ( I X ) , suppl.10, annex I ,
a r t . 9) annex I I , a r t . 9

CHR ( V I ) E/CN.4/SR.144, 145, 146, E/CN.4/353/Add.l, 2, 3, , 7, 8, 9

147, 148, 154, 199 9, 10, 11; E/CN.4/394, 397, 399,
400, 401, 402, 405 and R e v . l ,
406, 409, 410, 411, 421; ESC ( X I )
s u p p l . 5 , annex I , a r t . 6, annex I I ,
art. 6

ESC ( X I ) E/AC.7/SR.I47, 148, 149, E/C.2/259 and A d d . l 6

153

GA ( V ) 3rd Com., 288th, 289th, 6

290th, 291st, 296th mtgs.

CHR ( V I I ) E/CN.4/515/Add.2, 4, 13; 6

E/CN.4/523, 528, p a r a s . 109-124,
E/CN.4/563 and R e v . l ;
E/CN.4/NG0/21; ESC ( X I I l ) , s u p p l . 9 ,
annex I , a r t . 6, annex I I I , a r t . 6
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DOCUMENTATION ( c o n t ' d )

Organs and Article

sessions Records o f d i s c u s s i o n s Other documents number

ESC ( X I I I ) E/2059/Add.8 6

CHR ( V I I I ) E/CN.VSR.313, 314 E/CN.4/528/Add.l, p a r a s . 71-78; 6

E/CN /L.131, 137, 151, 183;
E/CN.4/NGO/39; ESC ( X I V )
suppl.4, p a r a s . 180-188,
annex I B , a r t . 8

CHR ( I X ) E/CN.4/674, p a r a s . 34-37; 6

ESC ( X V l ) , suppl.8, annex I B ,
art. 9

CHR ( X ) E/CN.4/694/Add.2, 5, 6; 9
E/CN.4/702, s e c t i o n s I X , XV

GA ( I X ) 3rd Com., 562nd, 565th, 9

568th, 569th mtgs
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ARTICLE 10

Treatment o f Persons Deprived, o f T h e i r L i b e r t y

1. A l l persons d e p r i v e d o f t h e i r l i b e r t y s h a l l be t r e a t e d
w i t h humanity.

2. Accused persons s h a l l be s e g r e g a t e d f r o m c o n v i c t e d
p e r s o n s , and s h a l l be s u b j e c t t o s e p a r a t e t r e a t m e n t a p p r o p r i a t e
t o t h e i r s t a t u s as u n c o n v i c t e d persons.

3. The p e n i t e n t i a r y system s h a l l comprise t r e a t m e n t d i r e c t e d

t o t h e f u l l e s t p o s s i b l e e x t e n t towards t h e r e f o r m a t i o n and s o c i a l
r e h a b i l i t a t i o n of prisoners.

39* D u r i n g t h e d i s c u s s i o n on t h i s a r t i c l e , i t was unanimously agreed t h a t

e v e r y p e r s o n d e p r i v e d o f h i s l i b e r t y , b o t h an accused p e r s o n , r e g a r d l e s s o f
t h e charge a g a i n s t h i m , and a c o n v i c t e d p e r s o n , s h o u l d be t r e a t e d w i t h
humanity.

Treatment o f accused p e r s o n s '

hO. A p r o p o s a l was made t h a t "accused persons s h a l l n o t be s u b j e c t e d t o

t h e same t r e a t m e n t as c o n v i c t e d persons".
hi. I t vas t h o u g h t t h a t t h i s w o r d i n g d i d n o t make i t c l e a r t h a t t h e f o r m e r
s h o u l d n o t be s u b j e c t e d t o h a r s h e r t r e a t m e n t t h a n t h e l a t t e r . The w o r d i n g
" s h a l l be s u b j e c t t o s e p a r a t e t r e a t m e n t a p p r o p r i a t e t o t h e i r s t a t u s as
u n c o n v i c t e d p e r s o n s " was c o n s i d e r e d a b e t t e r f o r m u l a t i o n .
h2. I t was agreed t h a t accused persons s h o u l d be s e g r e g a t e d f r c m c o n v i c t e d
persons, a l t h o u g h t h e v i e w was expressed t h a t t h e r e m i g h t be reasons f o r n o t
d o i n g so i n s p e c i a l cases. I t was p o i n t e d o u t t h a t s e g r e g a t i o n i n t h e r o u t i n e
o f p r i s o n l i f e and work c o u l d be a c h i e v e d , though a l l p r i s o n e r s m i g h t be
d e t a i n e d i n t h e same b u i l d i n g s . A p r o p o s a l t h a t accused persons s h o u l d be
p l a c e d " i n s e p a r a t e q u a r t e r s " was c o n s i d e r e d t o r a i s e s e r i o u s p r a c t i c a l problems;
i f adopted, S t a t e s p a r t i e s m i g h t be o b l i g e d t o c o n s t r u c t new p r i s o n s .

/ E/CN.tySR.371; E/CN.1+/523; E/CN.tyL.262; ESC(Xl), suppl.5, Annex I I I .

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O r i e n t a t i o n o f t h e P e n i t e n t i a r y System towards t h e R e f o r m a t i o n
and S o c i a l R e h a b i l i t a t i o n o f P r i s o n e r s

43. I t was acknowledged t h a t t h i s p r i n c i p l e was w i n n i n g i n c r e a s e d recognition

among c r i m i n o l o g i s t s and j u r i s t s . A t t e n t i o n was c a l l e d t o some d i f f i c u l t
problems o f a p p l i c a t i o n , and i n p a r t i c u l a r t o t h e n e c e s s i t y o f t a k i n g i n t o
account such f a c t o r s as t h e n a t u r e o f t h e o f f e n c e and t h e age o f t h e o f f e n d e r .
I t was c o n s i d e r e d d i f f i c u l t , however, t o p r o v i d e f o r d e t a i l e d measures o f
a p p l i c a t i o n i n an i n t e r n a t i o n a l i n s t r u m e n t such as t h e d r a f t covenant on
c i v i l and p o l i t i c a l r i g h t s .
44. I t may be n o t e d ^ t h a t w h i l e t h e o r i g i n a l French t e x t o f a r t i c l e 10,
paragraph 3, c o n t a i n s t h e words, "l'amendement e t l e reclassement s o c i a l d u
condamne", t h e E n g l i s h t r a n s l a t i o n reads: "the r e f o r m a t i o n and s o c i a l
r e h a b i l i t a t i o n of prisoners".

DOCUMENTATION

Organ and Session Records o f d i s c u s s i o n Other Documents A r t i c l e No.

CHR (V) E/CN.309;
ESC(IX),suppl.10,
Annex I

CHR ( V I ) E/CN.353/Add.8;
ESC(IX),suppl.5,
Annex I I I

CHR ( V I I ) E/CN.y515/Add.y
E/CN.4/523,528,
Paras.20, 21

CHR ( I X ) E/CN/SR.371, 409 E/CN.674; E/CN.4/

L.262,289; ESC(XVI),
suppl.8, paras.57-
53, Annex I , a r t . 1 0 ,
and Annex I I I , paras.
2-25

CHR (X) E/CN.4/694/Add.5 10

GA ( I X ) 3rd Ccm.,572nd mtg. 1

15/ E/CN.4/SR.409; E/CN.4/289.
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ARTICLE 1 1

Contractual Obligations

No one s h a l l be i m p r i s o n e d m e r e l y on t h e grounds
of i n a b i l i t y t o f u l f i l a c o n t r a c t u a l o b l i g a t i o n .

45. I t was agreed t h a t t h e a r t i c l e d i d n o t cover crimes committed t h r o u g h

t h e n o n - f u l f i l m e n t o f o b l i g a t i o n s o f p u b l i c i n t e r e s t , w h i c h were imposed b y
s t a t u t e o r court order, such as t h e payment o f maintenance a l l o w a n c e s .
46. With regard t o c o n t r a c t u a l o b l i g a t i o n s , various opinions were expressed.
A p r o p o s a l t o r e s t r i c t t h e scope o f t h e a r t i c l e t o " i n a b i l i t y t o pay a
c o n t r a c t u a l d e b t " was n o t a c c e p t e d . I t was agreed t h a t t h e a r t i c l e should
cover any c o n t r a c t u a l o b l i g a t i o n s , namely, t h e payment o f d e b t s , performance
o f s e r v i c e s o r t h e d e l i v e r y o f goods. One o p i n i o n was, however, t h a t
c o n t r a c t u a l o b l i g a t i o n s u n d e r t a k e n b y t h e i n d i v i d u a l towards t h e S t a t e were
sometimes so v i t a l i n n a t u r e - such as t h e d e l i v e r y o f e s s e n t i a l f o o d s t u f f s
for the population - t h a t i n a b i l i t y t o f u l f i l them s h o u l d j u s t i f y imprisonment.
47. I t was p o i n t e d o u t t h a t , i n p r a c t i c a l l y a l l c o u n t r i e s persons who were
a b l e b u t u n w i l l i n g t o f u l f i l c o n t r a c t u a l o b l i g a t i o n s m i g h t be punished b y
imprisonment. Reference was a l s o made t o s t a t u t e s which p r o v i d e d forthe
a r r e s t o f persons w i t h o u t s t a n d i n g debts who were about t o l e a v e t h e c o u n t r y
for an i n d e f i n i t e p e r i o d . A p r o p o s a l t o add t h e words "unless he i s g u i l t y
o f f r a u d " a t t h e end o f t h e a r t i c l e was, however, r e j e c t e d . The words '.'merely
on t h e grounds o f i n a b i l i t y " , i t was agreed, made i t s u f f i c i e n t l y c l e a r t h a t
a l l cases o f f r a u d were excluded f r o m t h e scope o f t h e a r t i c l e .
48. The words " o r h e l d i n s e r v i t u d e " , w h i c h appeared a f t e r t h e word " i m p r i s o n e d "
i n t h e f i r s t d r a f t s o f t h i s a r t i c l e , were s u b s e q u e n t l y d e l e t e d . I t may be
n o t e d i n t h i s connexion t h a t a r t i c l e 8 o f t h e d r a f t covenant on c i v i l and
p o l i t i c a l r i g h t s contains an u n q u a l i f i e d p r o h i b i t i o n o f s e r v i t u d e .
49. A p r o p o s a l t o add a new p a r a g r a p h "no one s h a l l be s u b j e c t e d t o excessive
f i n e s " , was r e j e c t e d .
 /292-9
English
Page 107

DOCUMENTATION

Organ and Records o f Article

session discussion Other documents number
DC ( I ) E/CNA/AC.I/SRA E/CN.VAC.l/8/Rev.l; E/CN.4/21,
annex G, A r t . 3

CHR ( I I ) E/CN.VAC.3/SR.7; E/CN.4/37, E/CN.4/56, A r t . 9;

E/CN.ySR.36 ESC ( V l ) , Suppl. 1, Annex B, 3
A r t . 10

DC ( I I ) E/CN.VAC.I/SR.23 E/CN/. 1/19; E / C N . V 8 2 and

Add.2, h, 7, 8, 12; E/CN.4/95, 10
annex B, A r t . 10

CHR ( V ) E/CN.4/SR.102 E/CN.V170 and Add.4,

E/CN.4/211, 216; ESC ( I X ) , 10
Suppl. 10, annex I , A r t . 10

CHR ( V I ) E/CN.4/SR.150, 199 E/CN.4/353/Add.3, 7, 10, 11;

E/CN.4/407; ESC ( X I ) , Suppl. 5, 10
annex I , A r t . 7

ESC ( X I ) E/AC.7/SR.148 7

CHR ( V I I ) E/CN.4/528, p a r a . 125 7

ESC ( X I I I ) E/2059/Add.6 7

CHR ( V I I I ) E/CN.4/SR.314 E/CN.4/528/Add.l, p a r a . 79;

ESC ( X I V ) Suppl. k, annex I B , 7
Art. 9

GA ( I X ) 3rd Com., 568th and

11
572nd mtgs.
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ARTICLE 12

Freedcm o f Movement

1. S u b j e c t t o any g e n e r a l l a w o f t h e S t a t e concerned w h i c h
p r o v i d e s f o r such r e a s o n a b l e r e s t r i c t i o n s as may be necessary
t o p r o t e c t n a t i o n a l s e c u r i t y , p u b l i c s a f e t y , h e a l t h or morals
or t h e r i g h t s and freedoms o f o t h e r s , c o n s i s t e n t w i t h t h e o t h e r
r i g h t s r e c o g n i z e d i n t h i s Covenant:

(a) Everyone l e g a l l y w i t h i n t h e t e r r i t o r y o f a
S t a t e s h a l l , w i t h i n t h a t t e r r r i t o r y , have t h e r i g h t
t o ( i ) l i b e r t y o f movement and ( i i ) freedcm t o choose
his residence;

(b) Everyone s h a l l be f r e e t o l e a v e any c o u n t r y ,

i n c l u d i n g h i s own.

2. ( a ) No one s h a l l be s u b j e c t e d t o a r b i t r a r y e x i l e ;

( b ) S u b j e c t t o t h e p r e c e d i n g sub-paragraph, anyone
s h a l l be f r e e t o e n t e r h i s own c o u n t r y .

50. The f i r s t d r a f t s o f t h i s a r t i c l e d e a l t o n l y w i t h t h e r i g h t o f t h e
i n d i v i d u a l t o leave any c o u n t r y , i n c l u d i n g h i s own, s u b j e c t t o c e r t a i n
restrictions. P r o v i s i o n s on freedcm o f movement and f r e e choice o f
r e s i d e n c e were added l a t e r , and most o f t h e d i s c u s s i o n o f t h e a r t i c l e , w h i c h
arose f r o m t h i s a d d i t i o n , was concerned w i t h t h e n a t u r e o f t h e l i m i t a t i o n s
c l a u s e t o be i n s e r t e d . There was seme exchange o f views a l s o on t h e p r o v i s i o n s
o f t h e second paragraph under w h i c h a r b i t r a r y e x i l e i s p r o h i b i t e d and t h e
r i g h t t o e n t e r one's c o u n t r y affirmed.

Limitations Clause^

51. I t was r e c o g n i z e d t h a t freedcm o f movement and f r e e choice o f r e s i d e n c e

were s u b j e c t t o c e r t a i n l e g i t i m a t e r e s t r i c t i o n s . O p i n i o n s d i f f e r e d on t h e scope
o f p e r m i s s i b l e l i m i t a t i o n s . Long l i s t s o f e x c e p t i o n s t o the exercise o f t h i s

16/ E / C N . 4 / A C . 1 / S R . 3 0 and 32; E/CN.4/AC.1/19; E/CN. 4/C. 3/SR. 5; E / C N . 4 / S R - 3 7 ,

IO6, 150, 151, 199, 15, 16; E/CN.V82/Add.7, 8 and 12; E/CN.4/85, 170,
170/Add.4, 199, 214, 215, 215/Rev.l, 217, 353/Add.10 and 11, 365, 4 l 2 ,
515/Add.6 and 12; E/CN.U/L.132, L.132/Rev.l; L.132/Rev.2, L.149,
L/l49/Rev.l, L . I 5 2 , L.185; E/AC.7/SR.147, 148, 149, 153; E/C.2/259/Add.1;
GA ( V ) , 3rd Com. 288th-29Cth and 305th mtgs.
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r i g h t were i n c l u d e d i n t h e e a r l i e r d r a f t s o f t h e a r t i c l e ' h u t l a t e r a more

g e n e r a l f o r m u l a was sought, w h i c h aimed a t g i v i n g p r o t e c t i o n t o t h e i n d i v i d u a l
while safeguarding the i n t e r e s t s of States.
52. One v i e w r e g a r d i n g t h i s a r t i c l e was t h a t , s i n c e i t was not possible t o
i n c l u d e an e x h a u s t i v e l i s t o f a l l t h e r e s t r i c t i o n s a p p l i c a b l e i n d i f f e r e n t
S t a t e s , and since any g e n e r a l w o r d i n g m i g h t be so b r o a d as t o r e n d e r the
a r t i c l e o f l i t t l e p r a c t i c a l v a l u e , t h e b e s t course would be t o d e l e t e i t f r o m
t h e Covenant. Freedom o f movement was n o t a fundamental, b u t r a t h e r a secondary
right. A g a i n s t t h i s i t was argued t h a t freedom o f movement c o n s t i t u t e d an
i m p o r t a n t human r i g h t and one w h i c h was an e s s e n t i a l p a r t o f t h e r i g h t t o
personal l i b e r t y . I t had been i n c l u d e d i n t h e U n i v e r s a l D e c l a r a t i o n o f
Human E i g h t s and s h o u l d f i n d i t s p l a c e i n t h e covenant. Moreover, t h e f a c t
t h a t i t had been d e n i e d i n r e c e n t t i m e s made i t s i n c l u s i o n a l l t h e more i m p o r t a n t .
53. Among t h e r e s t r i c t i o n s w h i c h v a r i o u s r e p r e s e n t a t i v e s mentioned as b e i n g
l e g i t i m a t e or necessary were those w h i c h m i g h t be imposed i n a n a t i o n a l
emergency, i n epidemics, f o r t h e c o n t r o l o f p r o s t i t u t i o n , on immigrants as a
t e m p o r a r y measure, on m i g r a n t workers i n c e r t a i n cases, and on indigenous
p o p u l a t i o n s i n c e r t a i n circumstances f o r t h e i r own p r o t e c t i o n . The limitations
might vary g r e a t l y from State t o State. I t was agreed t h a t t h e r i g h t t o leave
t h e c o u n t r y c o u l d n o t be c l a i m e d i n o r d e r t o escape l e g a l proceedings or t o
a v o i d such o b l i g a t i o n s as n a t i o n a l s e r v i c e , and t h e payment o f f i n e s , taxes or
maintenance allowances.
5k. R e s t r i c t i o n s on freedom o f movement should be p r o v i d e d by t h e law o f the
S t a t e concerned. The m a j o r i t y agreed t h a t the a r t i c l e s h o u l d s p e c i f y t h a t such
law must be j u s t , o t h e r w i s e i t c o u l d be i n t e r p r e t e d as a u t h o r i z i n g S t a t e s t o
impose any l i m i t a t i o n s t h e y wished. To meet t h i s p o i n t , i t was suggested t h a t
"the a r t i c l e should s t a t e t h a t t h e law must be i n accordance w i t h t h e p r i n c i p l e s
t h e C h a r t e r and t h e U n i v e r s a l D e c l a r a t i o n o f Human R i g h t s . A proposal that
i
t s h o u l d be " c o n s i s t e n t w i t h t h e o t h e r r i g h t s r e c o g n i z e d i n t h e Covenant" was,
^wever, p r e f e r r e d . I n t h i s connexion a t t e n t i o n was drawn t o the importance
O
t h e p r o v i s i o n s on n o n - d i s c r i m i n a t i o n as a p p l i e d t o t h i s a r t i c l e .

ESC ( V I I ) , , Suppl. 2, annex , a r t . 11.

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55 Seme c o n s i d e r e d such a g e n e r a l f o r m u l a u n s a t i s f a c t o r y , a l t h o u g h o t h e r s were

of t h e opinion t h a t i t provided s u f f i c i e n t r e s t r i c t i o n o f t h e r i g h t . One v i e w
was t h a t i t was t o o "broad and r e q u i r e d f u r t h e r q u a l i f i c a t i o n , another t h a t i t
p r o v i d e d no r e a l p r o t e c t i o n a g a i n s t t h e enactment o f a r b i t r a r y l e g i s l a t i o n .
I t was p o i n t e d o u t a l s o t h a t t h e l i m i t a t i o n s c l a u s e i n t h i s a r t i c l e should h e
i n l i n e w i t h o t h e r s i m i l a r clauses i n a r t i c l e s 18, 19, 20 and 21.
56. Some accepted t h e v i e w t h a t t h e r i g h t m i g h t he c u r t a i l e d b y domestic l a w
" c o n s i s t e n t w i t h t h e o t h e r r i g h t s r e c o g n i z e d i n t h e covenant" i n o r d e r t o
p r o t e c t " n a t i o n a l s e c u r i t y , p u b l i c s a f e t y , h e a l t h , morals, o r t h e r i g h t s and
freedoms o f o t h e r s " , a l t h o u g h t h e r e was o b j e c t i o n t h a t such p h r a s e s , and
e s p e c i a l l y t h e l a t t e r , c o u l d l e a d t o abuse. The a d d i t i o n o f such words as
" g e n e r a l w e l f a r e " , "economic and s o c i a l w e l l - b e i n g " , " p r e v e n t i o n o f d i s o r d e r o r
c r i m e " and " p u b l i c o r d e r " was a l s o proposed b u t n o t adopted. They were
c o n s i d e r e d t o be t o o f a r - r e a c h i n g .
57- I n d i s c u s s i n g t h e a p p l i c a t i o n o f t h e l i m i t a t i o n s c l a u s e , seme were o f t h e
v i e w t h a t i t should cover t h e p r o v i s i o n s o f b o t h paragraphs o f t h e a r t i c l e .
The m a j o r i t y , however, t h o u g h t t h a t t h e second p a r a g r a p h and, i n p a r t i c u l a r ,
t h e r i g h t t o e n t e r one's c o u n t r y should n o t b e s u b j e c t t o r e s t r i c t i o n .

18/
Prohibition of e x i l e

58. The p r o p o s a l t h a t t h i s a r t i c l e i n c l u d e a p r o v i s i o n p r o h i b i t i n g arbitrary

e x i l e , based on A r t i c l e 9 o f t h e U n i v e r s a l D e c l a r a t i o n o f Human E i g h t s , was
c r i t i c i z e d on t h e grounds t h a t a l i b e r a l and democratic s o c i e t y should n o t
p e r m i t e x i l e and, t h e r e f o r e , no such p r o v i s i o n should appear i n t h e covenant.
I f i t were i n s e r t e d , i t should p r o h i b i t e x i l e c o m p l e t e l y . The q u e s t i o n was a l s o
l i n k e d w i t h t h e r i g h t o f asylum.
59- I n support o f t h e p r o p o s a l i t was e x p l a i n e d t h a t , w h i l e i n most c o u n t r i e s
e x i l e no l o n g e r e x i s t e d as a p e n a l t y , i n seme circumstances i t m i g h t b e more
humane t o e x i l e a p e r s o n t h a n i n f l i c t on h i m more severe punishment, such as
d e t e n t i o n i n a c o n c e n t r a t i o n camp o r complete d e p r i v a t i o n o f l i b e r t y . Some doubt

18/ E/CN.VSR.I50, 199, 16; E/CN A/365, 515/Add.l6j E/CNA/L.I89,

L.l89/Rev.l.
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was expressed r e g a r d i n g t h e use o f t h e word " a r b i t r a r y " , b u t i t was t h o u g h t t h a t

i f a p r o v i s i o n on e x i l e were i n s e r t e d i n t h e covenant a t a l l i t s h o u l d d e a l o n l y
with arbitrary exile.

19/
R i g h t t o e n t e r one's c o u n t r y
. D i f f i c u l t i e s arose i n connexion w i t h t h i s p r o v i s i o n f o r S t a t e s i n w h i c h
t h e r i g h t t o r e t u r n t o one's c o u n t r y was governed, n o t b y r u l e s o f n a t i o n a l i t y
o r c i t i z e n s h i p , b u t b y t h e i d e a o f a permanent home. The e a r l y d r a f t s d e a l t
only w i t h the r i g h t o f nationals t o "enter" t h e i r country. I t was i n t e n d e d t o
cover cases such as t h o s e o f persons b o r n abroad who had never been t o t h e
country o f t h e i r n a t i o n a l i t y . Such a f o r m u l a was n o t s a t i s f a c t o r y f o r a S t a t e
which g r a n t e d t h e r i g h t o f " r e t u r n " t o persons who were n o t n a t i o n a l s b u t who
had e s t a b l i s h e d t h e i r home i n t h e c o u n t r y . A compromise was reached, based on
p a r a g r a p h 2 o f A r t i c l e 13 o f t h e U n i v e r s a l D e c l a r a t i o n o f Human R i g h t s , b y
r e p l a c i n g t h e r e f e r e n c e t o " c o u n t r y o f which he i s a n a t i o n a l " b y t h e words:
" h i s own c o u n t r y " . The r i g h t t o " e n t e r " t h e c o u n t r y was r e t a i n e d .

19/ E/CN.VSR.106, 151, 199, 15, 16; E/CN.V215, 215/Rev.l, 353/Add.lO, 365.
/ 29
English
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DOCUMENTATION

Organ and Records o f Article

session discussion Other documents number

E/CN.4/AC.I/ E/CN.4/AC.1/8, 8/Rev.l, 9 and 11; 9 and 10

SR.4 E/CN.4/2, annex A, a r t s . 9 and 10,
annex B, P t . I I , a r t . 11, and
annex G, a r t . 5

CHR ( I I ) //./ E/CN.4/37, kl/Rev.l, 56, a r t . 10; ESC 5 and 10

SR.5, E/CN.4/ (VI), S u p p l . 1, annex B, a r t . 11
SR. 37

EC (II) E/CN.4/AC.I/ E/ .4/.I/19; E/CN .4/82/Rev.1, 11

SR.30 and 32 82/dd.4, Add. 7, Add. 8, Add. 12,
85 and 95, annex B, a r t . 11

CHR ( I I I ) ESC ( V I I ) , S u p p l . 2, annex B, a r t . 11

CHR ( V ) E/CN.4/SR.105 E/CN.4/170, 170/Add.4, 199, 2l4, 215, 11

and 106 215/Rev.l, 217, and 219; ESC ( i X ) ,
S u p p l . 10, annex I , a r t . 11

CER (VI) E/CN.4/SR.150 E/CN.U/353/Add. 10 and 11, 365, 4.12; 11

151 and 199 E / C N . 4 / L . 1 , L.10, L. l 6 ; ESC ( X l ) ,
Suppl. 5, annexes I and 2, a r t . 8

E&C ( X I ) E/AC.T/SR.I47 E / L . 6 8 , E/C.2/259/Add.l 8

l48, 1U9 and
153

GA ( V I ) 3rd Corn, 288th,

289th, 290th,
305th mtgs.

CHR ( V I I ) E/'CN.4/515/Add.3, Add.6, Add.12;

E/CN.4/528; ESC ( X I I I ) , S u p p l . 9,
annex I , a r t , 8, annex I I I , A and

CHR (VIII) E/CN.4/SR.315, E/CN.4/528/Add.l, E/CN.4/L.123, 8

316 L.123/Corr.l, L.I32, .
L.132/Rev.2, L.149, L.l49/Rev.l, L.152,
L.185, L.186, L.189, L.l89/Rev.l;
ESC ( X I V ) , Suppl.4, p a r a s . I9O-I97, and
annex I B, a r t . 10

CHR ( X ) E/CN.4/702 ( V I I ) , ( I X ) , ( X I I )
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ARTICLE 13

Expulsion o f Aliens

An a l i e n l a w f u l l y i n t h e T e r r i t o r y o f a S t a t e P a r t y t o t h e
Covenant may be e x p e l l e d t h e r e f r o m o n l y i n pursuance o f a
d e c i s i o n r e a c h e d i n accordance w i t h law and s h a l l , except where
c o m p e l l i n g reasons o f n a t i o n a l s e c u r i t y o t h e r w i s e r e q u i r e , be
a l l o w e d t o submit t h e reasons a g a i n s t h i s e x p u l s i o n and t o have
h i s case r e v i e w e d b y and be r e p r e s e n t e d f o r t h e purpose b e f o r e
t h e competent a u t h o r i t y o r a p e r s o n o r persons e s p e c i a l l y
d e s i g n a t e d b y t h e competent a u t h o r i t y .

61. D i s c u s s i o n o f t h i s a r t i c l e has c e n t r e d on t h e n a t u r e and e x t e n t o f t h e

p r o t e c t i o n w h i c h s h o u l d be accorded a l i e n s a g a i n s t e x p u l s i o n , h a v i n g r e g a r d t o
t h e d e s i r e o f S t a t e s t o s a f e g u a r d themselves a g a i n s t u n d e s i r a b l e a l i e n s i n t h e i r
territories.
62. P r o v i s i o n s c o v e r i n g t h e r i g h t o f asylum and e x t r a d i t i o n have a l s o been
d i s c u s s e d i n connexion w i t h t h i s a r t i c l e b u t t h e v a r i o u s p r o p o s a l s submitted
were a l l r e j e c t e d .

20/
Protection o f aliens against a r b i t r a r y e x p u l s i o n '
63. I t was proposed t h a t t h e a r t i c l e s h o u l d s t a t e t h a t t h e grounds f o r e x p u l s i o n
of a l i e n s l a w f u l l y i n t h e t e r r i t o r y o f a S t a t e must have a l e g a l b a s i s ; i t should
a l s o p r o v i d e t h a t t h e procedure t o be f o l l o w e d i n cases o f e x p u l s i o n must be
p r e s c r i b e d b y law. The p r i n c i p l e t h a t t h e grounds f o r e x p u l s i o n must be i n
accordance w i t h t h e law was n o t q u e s t i o n e d , b u t t h e r e was some o b j e c t i o n t h a t such
a p r o v i s i o n m i g h t be d i f f i c u l t t o a p p l y and m i g h t , i n some cases, even be
i n a d v i s a b l e f o r reasons o f n a t i o n a l s e c u r i t y . I t was agreed t h a t a d e c i s i o n t o
e x p e l an a l i e n was a most s e r i o u s m a t t e r and s h o u l d n o t be t a k e n a r b i t r a r i l y .
A l i e n s must be a f f o r d e d some p r o t e c t i o n a g a i n s t a r b i t r a r y a c t i o n .

20/ //AC.3/SR.9; E/CN.VSR.IO6, 153, 154, 154/Corr.l (Eng. o n l y ) , 155,

P t . I I , 316, 317, 318; E/CN.VWHev.l, 56, a r t . I I , 82/Add.7,. 8 and 12,
85, 213; E/CN.tyL.llH; E/AC.7/SR.149; E/C.2/259/Add.l.
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64. The n a t u r e o f t h e safeguards w h i c h s h o u l d he p r o v i d e d f o r t h e i n d i v i d u a l

was d i s c u s s e d , and i t was s a i d t h a t t h e a r t i c l e s h o u l d he so d r a f t e d as t o make
c o u n t r i e s which d i d n o t already provide f o r appeal against a d e c i s i o n o f
e x p u l s i o n , adopt l e g i s l a t i o n t o t h a t e f f e c t . Some were opposed t o i n c l u d i n g
any s p e c i f i c p r o v i s i o n s i n t h e a r t i c l e , b e i n g o f t h e v i e w t h a t S t a t e s c o u l d i n
t h e i r own d i s c r e t i o n e x p e l a l i e n s and decide on t h e procedures and safeguards
which t h e y wished t o e s t a b l i s h . The m a j o r i t y , however, b e l i e v e d t h a t t h e
a r t i c l e s h o u l d s t r i k e a p r o p e r b a l a n c e between t h e i n t e r e s t s o f t h e S t a t e and
the protection of the individual. A r t i c l e 32 o f t h e C o n v e n t i o n r e l a t i n g t o t h e
21/
S t a t u s o f R e f u g e e s ' o f 28 J u l y 1951 was c o n s i d e r e d t o p r o v i d e t h e p r o p e r basis
f o r a c t i o n b y t h e a u t h o r i t i e s w i t h adequate and s p e c i f i c safeguards i n r e s p e c t
o f t h e e x e r c i s e o f such a c t i o n . A r t i c l e 13, as a d o p t e d , was based on t h i s
a r t i c l e o f t h e Convention.
22 /
R i g h t o f Asylum
65. I n d i s c u s s i n g t h e i n c l u s i o n o f a p r o v i s i o n on t h e r i g h t o f asylum i n t h i s
a r t i c l e o r i n a separate a r t i c l e , i t was s a i d t h a t S t a t e s s h o u l d be generous
i n e x t e n d i n g asylum t o p e r s e c u t e d individuals. The a d v i s a b i l i t y o f a t t e m p t i n g
t o t r a n s l a t e t h i s p r i n c i p l e i n t o a p o s i t i v e o b l i g a t i o n i n t h e covenant, however,
was questioned.

21/ A/Conf.2/108. An i d e n t i c a l p r o v i s i o n was a l s o i n c l u d e d I n t h e c o n v e n t i o n

r e l a t i n g t o t h e S t a t u s o f S t a t e l e s s Persons o f 28 September 1954.
(E/Conf.17/5, a r t . 3 1 ) .
22/ E/CN.4/AC.3/SR.9; E/CN.4/SR.153, I54, 154/Corr.l (Eng. o n l y ) , 155, P t . I I ,
I99, 316, 317, 18; E/CN.4/4l/Rev.l, 56, Chap. I l l , 3 4 l , 365, 392, 396,
423, 573, 660, 702 (xvi), 702/Add.l ( X X V I I ) , ( X X V I I I ) ; E/CN.4/L.I84,
L.190, L.i9o/Rev.i and 2; L.191; E/CN.4/NGO.37, 39; E/AC.7/SR.I47, l48
149; ESC ( V T ) , s u p p l . 1, p a r a . 48, ESC ( I X ) , s u p p l . 10, para.33,
ESC ( X I ) , s u p p l . 5, annex I I I , ESC ( X I V ) , s u p p l . 4, annex I V ; GA ( V ) ,
3rd Com. 291st, 304th, 305th, 307th mtgs.; GA ( v ) , annexes, a . i . 63,
A/C.3/L.92, GA ( I X ) , 3rd Com. 565th and 566th mtgs. A t t e n t i o n i s a l s o
drawn t o t h e views expressed on t h i s q u e s t i o n b y t h e H i g h Commissioner f o r
Refugees (E/CN.4/659; E/2085/Add.l).
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66. One view was t h a t S t a t e s a l o n e s h o u l d d e c i d e whether o r n o t t h e y would

g r a n t asylum t o p a r t i c u l a r i n d i v i d u a l s . The danger o f i n f i l t r a t i o n b y f o r e i g n
agents o r a g i t a t o r s who m i g h t seek asylum under f a l s e p r e t e n s e s was c i t e d , and
i t was c l a i m e d t h a t most S t a t e s would he r e l u c t a n t t o commit themselves i n
advance t o g r a n t i n g t h e r i g h t o f asylum, e s p e c i a l l y i f t h e y c o u l d n o t l a t e r
expel undesirable a l i e n s . The o p p o s i t e view was t h a t t h e r i g h t o f asylum was
a f u n d a m e n t a l r i g h t o f t h e i n d i v i d u a l and t h e n a t u r a l c o r o l l a r y o f t h e o t h e r
r i g h t s and freedoms s e t f o r t h i n t h e covenant. An a r t i c l e on t h i s r i g h t was
i n c l u d e d i n t h e U n i v e r s a l D e c l a r a t i o n o f Human R i g h t s and i t s o m i s s i o n f r o m t h e
covenant would c o n s t i t u t e a s e r i o u s gap.
67. I t was p o i n t e d o u t t h a t t h e i n f l u x o f l a r g e numbers o f r e f u g e e s i n t o a
p a r t i c u l a r S t a t e m i g h t cause m a t e r i a l and economic problems f o r t h a t S t a t e . I n
o r d e r t o overcome such p r a c t i c a l d i f f i c u l t i e s , t h e U n i t e d N a t i o n s o r a group o f
S t a t e s a c t i n g c o l l e c t i v e l y m i g h t assume t h e r e s p o n s i b i l i t y f o r g r a n t i n g t h e
r i g h t o f asylum. A g a i n s t t h i s s u g g e s t i o n i t was s a i d t h a t , as y e t , no
machinery f o r such i n t e r n a t i o n a l c o - o p e r a t i o n e x i s t e d , e s p e c i a l l y i n cases
where a p a r t i c u l a r S t a t e d e c i d e d t o r e f u s e asylum.
68. I n p r o p o s a l s s u b m i t t e d t o t h e Commission on Human R i g h t s a t t e m p t s were
made t o s p e c i f y t h e c a t e g o r i e s o f persons who s h o u l d be guaranteed asylum. No
one c o n s i d e r e d t h a t t h e r i g h t s h o u l d be c o n f e r r e d on a l l persons d e s i r i n g it.
The f o l l o w i n g were among t h o s e f o r whom i t was suggested asylum s h o u l d be
provided* p o l i t i c a l o f f e n d e r s , persons accused o r p e r s e c u t e d f o r p a r t i c i p a t i o n
i n t h e s t r u g g l e f o r n a t i o n a l independence o r p o l i t i c a l freedom, f o r a c t i v i t i e s
f o r t h e achievement o f t h e purposes and p r i n c i p l e s o f t h e C h a r t e r and o f t h e
U n i v e r s a l D e c l a r a t i o n o f Human R i g h t s , f o r a c t i v i t i e s i n defence o f d e m o c r a t i c
i n t e r e s t s and f o r s c i e n t i f i c work. These were c r i t i c i z e d as b e i n g t o o vague
and d i f f i c u l t t o d e f i n e . I n p a r t i c u l a r , i t was s a i d t h a t t h e concept o f
p o l i t i c a l o f f e n d e r s and p o l i t i c a l crimes v a r i e d g r e a t l y f r o m c o u n t r y t o c o u n t r y
and would g i v e r i s e t o d i f f e r e n t i n t e r p r e t a t i o n s .
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69. I t was proposed t h a t t h e r i g h t o f asylum s h o u l d n o t he g r a n t e d t o war

criminals o r t o persons c o n v i c t e d o f " n o n - p o l i t i c a l c r i m e s " , such as murder
and a r s o n , o r o f a c t s c o n t r a r y t o t h e purposes and p r i n c i p l e s of the United
Nations -

23/
Extradition^'
70. O p i n i o n s d i f f e r e d on t h e a d v i s a b i l i t y o f i n c l u d i n g a p r o v i s i o n on
extradition i nthis article. Some c o n s i d e r e d t h a t t h e covenant s h o u l d l a y
down c e r t a i n g e n e r a l p r i n c i p l e s , w h i l e o t h e r s were o f t h e v i e w t h a t extradition
was n o t a p p r o p r i a t e f o r i n c l u s i o n i n t h e covenant w h i c h s h o u l d be l i m i t e d t o
l a y i n g down f u n d a m e n t a l human r i g h t s and n o t r i g h t s w h i c h were c o r o l l a r i e s
thereof. They a l s o c o n s i d e r e d t h a t t h e m a t t e r was t o o c o m p l i c a t e d t o be
included i n a single a r t i c l e or provision.
71. The c a t e g o r i e s o f persons who, i t was suggested, s h o u l d be exempt f r o m
e x t r a d i t i o n were t h e same as t h o s e proposed i n c o n n e x i o n w i t h t h e r i g h t o f
asylum. The same c r i t i c i s m s were a l s o r a i s e d concerning t h e d i f f i c u l t i e s o f
interpretation.
72. I t was argued t h a t t h e i n c l u s i o n o f a p r o v i s i o n on e x t r a d i t i o n i n t h e
covenant would cause d i f f i c u l t i e s r e g a r d i n g t h e r e l a t i o n s h i p o f t h e covenant t o
e x i s t i n g t r e a t i e s and b i l a t e r i a l agreements. I t was suggested t h a t a s e p a r a t e
c o n v e n t i o n on e x t r a d i t i o n m i g h t be drawn up.

23/ //365, 423; E / C N . 4 / L . 1 S 4 , L . I 9 0 , L.190/Rev.l and 2, E/CN.4/SR.153,

~~ I54, 154/Corr.l (Eng. o n l y ) , 155, P t . I I , 316, 17, 18.
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DOCUMENTATION

Organ and Records o f Article

Session discussion Other documents number

DC ( I ) E/CN.4/AC.I/SR.4 E/CN.4/21, annex A, a r t s . 33 and 34 33 and

34
CHR ( I I ) E/CN.4/AC.3/SR.9, E/CN.4/4l/Rev.l, 56, a r t . 11 and 11
E/CN.ySR.37 chap. I l l ; ESC ( V I ) , s u p p l . 1 , p a r a . 4 8
and annex B, a r t . 12
DC ( I I ) E/CN.4/AC.1/SR.30 E/CN.4/82/Rev.l, 8 2 / A d d s . 2 , 3, 4, 7, 8, 12
12; 85, 95 annex B, a r t . 12
CHR ( I I I ) ESC ( V I l ) , s u p p l . 2, annex B, a r t . 11
CHR (V) E/CN. V S R . 106, 133 E/CN.4/213, 219, 3 4 1 , ESC ( I X ) , s u p p l . 10, 12
p a r a . 33, and annex I , a r t . 12
CHR ( V I ) E/CN.VSR.15, I54, E/CN.V353/Add.lO, 365, 392, 392/Corr.l, 12
1 5 C o r r . l (Eng. 396, 420, 423; E/CN.4/L.3, L.10,
o n l y ) 155, P t . I I , E/CN.4/NG0.2, 4, 7; ESC ( X l ) , s u p p l . 5 ,
and 199 annex I , a r t . 9, and annex I I I
E / A C . 7 / S R . 1 4 7 , 1 4 8 , E/C.2/254, 254/Add.l, 259/Add.l
ESC ( X I )
149
9
.
GA (V) 3rd Com., 291st, GA ( V ) , annexes, a . i . 63, A/C.3/L.79, 9
304th, 305th, 307th L.92
mtgs.
CHR ( V I I ) E/CN.4/528, 573; ESC ( X I I I ) , s u p p l . 9 , 9
annex I , a r t . 9 , annex I I , annex I I I A,
annex I V
ESC ( X I I I ) /2085/Add.l 9
CHR ( V I I I ) E/CN.4/SR.316-318 E/CN.4/528/Add.l, 659, 660, E/CN.4/L.141, 9
L . I 5 0 , L.153, L.184, L.188, L . I 9 0 ,
L.190/Rev.l, L.191; E/CN.4/NG0.37, 39;
ESC ( X I V ) , s u p p l . 4 , paras.I98-204, annex
I B, a r t . 11 and annex I V
CHR ( X ) E/CN.4/702 ( X V I ) , 702/Add.l ( X X V I I ) , 12
( X X V I I I ) , E/CN.4/L.311
GA (IX) 3rd Com. 565th, A/2808
566th mtgs.
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ARTICLE lk

Fair T r i a l

1. A l l persons s h a l l be e q u a l b e f o r e t h e c o u r t s and t r i b u n a l s .
I n t h e d e t e r m i n a t i o n o f any c r i m i n a l charge a g a i n s t him, or o f
h i s r i g h t s and o b l i g a t i o n s i n a s u i t a t law, everyone s h a l l be
e n t i t l e d t o a f a i r and p u b l i c h e a r i n g by a competent,
independent and i m p a r t i a l t r i b u n a l e s t a b l i s h e d by law. The
Press and p u b l i c may be excluded f r o m a l l or p a r t o f a t r i a l
f o r reasons o f m o r a l s , p u b l i c o r d e r o r n a t i o n a l s e c u r i t y i n a
democratic s o c i e t y , or when t h e i n t e r e s t o f t h e p r i v a t e l i v e s
o f t h e p a r t i e s so r e q u i r e s , or t o t h e e x t e n t s t r i c t l y necessary
i n t h e o p i n i o n o f t h e C o u r t i n s p e c i a l circumstances where
p u b l i c i t y would p r e j u d i c e t h e i n t e r e s t o f j u s t i c e ; b u t any
judgment r e n d e r e d i n a c r i m i n a l case or i n a s u i t a t law s h a l l
be pronounced p u b l i c l y except where t h e i n t e r e s t o f j u v e n i l e s
o t h e r w i s e r e q u i r e s or t h e proceedings concern m a t r i m o n i a l
d i s p u t e s or t h e g u a r d i a n s h i p o f c h i l d r e n .

2. Everyone charged w i t h a c r i m i n a l o f f e n c e s h a l l have t h e

r i g h t t o be presumed i n n o c e n t u n t i l p r o v e d g u i l t y a c c o r d i n g t o
law. I n t h e d e t e r m i n a t i o n o f any c r i m i n a l charge a g a i n s t him,
everyone s h a l l be e n t i t l e d t o t h e f o l l o w i n g minimum guarantees,
i n f u l l equality:

(a) To be i n f o r m e d p r o m p t l y i n a language w h i c h he
understands and i n d e t a i l o f t h e n a t u r e and cause o f
t h e a c c u s a t i o n a g a i n s t him;

(b) To have adequate t i m e and f a c i l i t i e s f o r t h e p r e p a r a t i o n

of h i s defence;

(c) To defend h i m s e l f i n person or t h r o u g h l e g a l a s s i s t a n c e

of h i s own choosing; t o be i n f o r m e d , i f he does n o t have l e g a l
a s s i s t a n c e , o f t h i s r i g h t ; and t o have l e g a l a s s i s t a n c e a s s i g n e d
t o him, i n any case where t h e i n t e r e s t s o f j u s t i c e so r e q u i r e ,
and w i t h o u t payment by him i n any such case where he does n o t
have s u f f i c i e n t means t o pay f o r i t ;

(d) To examine, or have examined, t h e w i t n e s s e s a g a i n s t him

and t o o b t a i n t h e attendance and e x a m i n a t i o n o f witnesses on
h i s b e h a l f under t h e same c o n d i t i o n s as w i t n e s s e s a g a i n s t
him;

(e) To have t h e f r e e a s s i s t a n c e o f an i n t e r p r e t e r i f he
cannot understand or speak t h e language used i n c o u r t ;
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( f ) Not t o he compelled t o t e s t i f y a g a i n s t h i m s e l f , o r
t o confess g u i l t .

3. I n t h e case o f j u v e n i l e s , t h e procedure s h a l l be such as

w i l l t a k e account o f t h e i r age and t h e d e s i r a b i l i t y o f p r o m o t i n g
their rehabilitation.

4. I n any case where b y a f i n a l d e c i s i o n a p e r s o n has been

c o n v i c t e d o f a c r i m i n a l o f f e n c e and where s u b s e q u e n t l y h i s
c o n v i c t i o n has been r e v e r s e d o r he has been pardoned on t h e
gound t h a t a new o r newly d i s c o v e r e d f a c t shows c o n c l u s i v e l y
t h a t t h e r e has been a m i s c a r r i a g e o f j u s t i c e , t h e p e r s o n who
has s u f f e r e d punishment as a r e s u l t o f such c o n v i c t i o n s h a l l
be compensated u n l e s s i t i s proved t h a t t h e n o n - d i s c l o s u r e o f
t h e unknown f a c t i n t i m e i s w h o l l y o r p a r t l y a t t r i b u t a b l e t o
him.

73 The importance o f a r t i c l e 14 was emphasized s i n c e , i n t h e l a s t a n a l y s i s , t h e

i m p l e m e n t a t i o n o f a l l t h e r i g h t s i n t h e Covenant depended upon t h e p r o p e r
24/
administration of j u s t i c e . '
74. While paragraphs 2, 3 and k were meant t o r e l a t e t o c r i m i n a l p r o c e e d i n g s , a l l
t h e p r o v i s i o n s o f paragraph 1 were i n t e n d e d t o a p p l y t o b o t h c r i m i n a l and c i v i l
proceedings,^
26/
E q u a l i t y b e f o r e t h e Courts and T r i b u n a l s '
75 The i n c l u s i o n o f t h e p r o v i s i o n t h a t a l l persons s h a l l be e q u a l b e f o r e t h e
c o u r t s and t r i b u n a l s was supported on t h e ground t h a t a r b i t r a r y d i s t i n c t i o n s
e s p e c i a l l y t h o s e based on r a c e o r w e a l t h s h o u l d be p r o h i b i t e d . I t was opposed i n
t h e l i g h t o f t h e f a c t t h a t a r t i c l e 2k o f t h e d r a f t covenant c o n t a i n e d t h e
p r i n c i p l e o f e q u a l i t y before the law.

24/ E/CN .4/SR. I53 and 323.

25/ See e s p e c i a l l y E/CN.4/SR.155, P a r t I I , and E/CN.4/SR.156.
26/ E/CN.4/SR.107, 109, HO, 318 and 323, E/CN.4/L.124, /CN.4/253 and E

284 and GA ( I X ) , 3rd Com., 580th mtg., p a r a . 13.

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7. I t was proposed t o add a p r o v i s i o n aimed a t e n s u r i n g t h a t l e g a l p r o c e e d i n g s

would be based on d e m o c r a t i c p r i n c i p l e s , i n o r d e r t o guarantee t h a t j u s t i c e would
n o t be a d m i n i s t e r e d on l i n e s o f s o c i a l p r i v i l e g e , c h a u v i n i s m and r a c i a l i n e q u a l i t y .
T h i s p r o p o s a l was r e j e c t e d a f t e r i t had been argued t h a t i t m i g h t weaken t h e more
p r e c i s e guarantees p r o v i d e d f o r t h e accused l a t e r i n t h e article.

27/
R i g h t t o a f a i r and p u b l i c h e a r i n g
77 The use o f t h e word "competent" b e f o r e "independent and i m p a r t i a l t r i b u n a l "
i n p a r a g r a p h 1 was i n t e n d e d t o ensure t h a t a l l persons were t r i e d i n c o u r t s whose
j u r i s d i c t i o n had been p r e v i o u s l y e s t a b l i s h e d b y l a w , and a r b i t r a r y a c t i o n so
avoided.
78. There was some d i s c u s s i o n o f t h e e x t e n t t o w h i c h s e c r e c y was p e r m i s s i b l e o r
cesirable i n j u d i c i a l proceedings. I t was observed t h a t , i n most c o u n t r i e s ,
p u b l i c i t y had been i n t r o d u c e d as a safeguard against a r b i t r a r y a c t i o n by t h e
courts. The t e x t adopted r e f l e c t s t h e view t h a t some o f t h e f a c t o r s which m i g h t
j u s t i f y a s e c r e t h e a r i n g would n o t j u s t i f y d e l i v e r y o f judgment i n p r i v a t e .
79 I t was a r g u e d , u n s u c c e s s f u l y , t h a t t h e words " p u b l i c o r d e r " should be
r e p l a c e d b y " t h e p r e v e n t i o n o f d i s o r d e r " because t h e l a t t e r r e p r e s e n t e d what was
i i t e n d e d , whereas t h e E n g l i s h e x p r e s s i o n " p u b l i c o r d e r " and t h e French " o r d r e p u b l i c "
pp./
d i d n o t have t h e same m e a n i n g . ' The words " i n a d e m o c r a t i c s o c i e t y " t a k e n from
a r t i c l e 29, paragraph 2, o f t h e U n i v e r s a l D e c l a r a t i o n o f Human R i g h t s were r e g a r d e d
as r e p r e s e n t i n g a s a l u t a r y s a f e g u a r d ; t h e i r i n c l u s i o n was u n s u c c e s s f u l l y opposed
on t h e grounds t h a t t h e y were ambiguous and m i g h t be d i f f e r e n t l y i n t e r p r e t e d .
80. When t h e i n c l u s i o n o f t h e words " o r t o t h e e x t e n t s t r i c t l y necessary i n t h e
o p i n i o n o f t h e c o u r t i n s p e c i a l circumstances where p u b l i c i t y would p r e j u d i c e t h e
i n t e r e s t o f j u s t i c e " was under c o n s i d e r a t i o n , r e f e r e n c e was made t o t h e

27/ E/CN.4/SR.106, 107, 109, 110, 153, 155, P a r t I I , I56, 199, 318 and 323,
/ , . ^ and L.154, E/CN.4/170, 232 and C o r r . l , 253, 279, 2 8 l , 282,
283, 286, 353/Adda.lO and 11, 365, 4l4, 426 and 694/Add.7, ESC ( X I I l ) ,
s u p p l . 9, Annex I I I , S e c t i o n A and GA ( I X ) 3rd Com., 566th mtg., para.20,
568th mtg., para. 8, 570th, p a r a . 3 and 571st, p a r a . 38.
28/ See a l s o a n n o t a t i o n under a r t i c l e 18, p a r a s . 112-114.
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d e s i r a b i l i t y i n some i n s t a n c e s o f k e e p i n g t h e s u b j e c t m a t t e r o f l i t i g a t i o n s e c r e t ,
f o r i n s t a n c e where s e c r e t i n d u s t r i a l processes were i n v o l v e d , and.to t h e s p e c i a l
p o s i t i o n o f l e g a l l y i n c a p a b l e persons and f i r s t o f f e n d e r s .
81. When, a t a l a t e r p o i n t , t h e use o f t h e words " t h e i n t e r e s t o f t h e p r i v a t e
l i v e s o f t h e p a r t i e s " was b e i n g d i s c u s s e d , r e f e r e n c e was made t o proceedings
i n v o l v i n g m a t r i m o n i a l d i s p u t e s o r t h e g u a r d i a n s h i p o f c h i l d r e n and t o t h e
requirements o f t h e i n t e r e s t s of j u v e n i l e s ; t h e view was expressed t h a t i t would
have been s a f e r t o r e f e r t o t h e i n t e r e s t o f j u v e n i l e s i n s t e a d o f t h e i n t e r e s t o f
the p r i v a t e l i v e s o f the p a r t i e s .
82. When t h e i n c l u s i o n o f t h e words " o r t h e proceedings concern m a t r i m o n i a l
d i s p u t e s o r t h e g u a r d i a n s h i p o f c h i l d r e n " was b e i n g d i s c u s s e d i t was observed
t h a t t h i s would s i g n i f y t h a t judgment would be pronounced i n t h e presence o f t h e
f a m i l y and f r i e n d s o f t h e p a r t i e s and i n t h e presence o f t h e p r e s s , b u t t h a t t h e
g e n e r a l p u b l i c would be excluded. I t was a l s o p o i n t e d o u t t h a t t h e reasons f o r
e x c l u d i n g t h e p u b l i c f r o m t h e judgements i n cases i n v o l v i n g g u a r d i a n s h i p o f
29/
c h i l d r e n were n o t l i m i t e d t o t h e i n t e r e s t s o f j u v e n i l e s . '
30 /
Rights o f the Accused'
83. I n j u s t i f i c a t i o n o f t h e r e t e n t i o n o f b o t h a r t i c l e 9, paragraph 2, and
a r t i c l e 14, paragraph 2 ( a ) , i n t h e covenant, i t was observed t h a t t h e f o r m e r d i d
n o t p r o t e c t a person charged o f an o f f e n c e b u t n o t a r r e s t e d , o r cover w r o n g f u l l y
i n f l i c t e d punishment o t h e r t h a n d e p r i v a t i o n of liberty.
84. I t was argued t h a t t h e statement i n paragraph 2 ( c ) , t h a t t h e accused had n o t
o n l y t h e r i g h t t o defend h i m s e l f i n p e r s o n o r t h r o u g h l e g a l a s s i s t a n c e o f h i s
own c h o o s i n g , b u t a l s o t h e r i g h t , i f he d i d n o t have l e g a l a s s i s t a n c e , t o be
i n f o r m e d o f t h a t r i g h t , was s e l f - e v i d e n t and, because o f i t s u n s a t i s f a c t o r y
formulation, i l l u s o r y , s i n c e i t c o n f e r r e d no w o r t h w h i l e s u b s t a n t i v e r i g h t on an

29/ E/CN.4/SR.323.
30/ E/CN.4/SR.106, 107, 109, 110, 155, P a r t I I , 156, 157, 159, 167, 199, 518,
~~ and 323, E/CN.4/L.124 and L . 4 2 , E/CN.4/232 and C o r r . l , 253, 279, 281, 284,
286, 365, 422/Rev.l, 428 and 528, p a r a . 151 and E S C ( X I I l ) , s u p p l . 9,
Annex I I I , S e c t i o n A.
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accused p e r s o n . On t h e o t h e r hand, t h e v i e w was expressed t h a t i n many c o u n t r i e s

t h e r i g h t o f an accused p e r s o n t o he i n f o r m e d t h a t he c o u l d defend h i m s e l f o r he
r e p r e s e n t e d b y c o u n s e l was a v a l u a b l e p r o c e d u r a l r i g h t , i f n o t a s u b s t a n t i v e
r i g h t , and c o n s t i t u t e d a s u r e r guarantee f o r t h e s a f e g u a r d i n g o f o t h e r r i g h t s
connected w i t h c r i m i n a l p r o c e e d i n g s .
85. I t was r e c o g n i z e d t h a t i t m i g h t be d i f f i c u l t i n p r a c t i c e t o i n f o r m an accused
o f h i s r i g h t , under t h i s p a r a g r a p h , t o have l e g a l a s s i s t a n c e o f h i s own c h o o s i n g
a s s i g n e d t o h i m f r e e o f charge i f he d i d n o t have t h e means t o pay f o r i t .
86. I n sub-paragraph ( d ) , t h e s t a t e m e n t t h a t an accused p e r s o n s h o u l d have t h e
r i g h t " t o o b t a i n t h e a t t e n d a n c e and e x a m i n a t i o n o f w i t n e s s e s on h i s b e h a l f under
t h e same c o n d i t i o n s as w i t n e s s e s a g a i n s t him," was p r e f e r r e d t o t h e g r a n t i n g o f
t h e r i g h t " t o o b t a i n compulsory a t t e n d a n c e o f w i t n e s s e s i n h i s b e h a l f who a r e
w i t h i n t h e j u r i s d i c t i o n and s u b j e c t t o t h e process o f t h e t r i b u n a l . " I t was
s a i d t h a t t h e l a t t e r w o r d i n g ( w h i c h was proposed w i t h a v i e w t o s a f e g u a r d i n g t h e
s p e c i a l r i g h t s and p r i v i l g e s o f c e r t a i n c a t e g o r i e s o f persons i n f o r e i g n
t e r r i t o r i e s , f o r example, members o f t h e d i p l o m a t i c c o r p s ) appeared t o guarantee
what was n o t always p o s s i b l e . A l l t h a t c o u l d p r o p e r l y be expected was t h a t b o t h
t h e p r o s e c u t i o n and t h e defence s h o u l d have e q u a l access t o t h e process o f t h e
c o u r t t o o b t a i n t h e a t t e n d a n c e and e x a m i n a t i o n o f such w i t n e s s e s as each d e s i r e d .
There was disagreement as t o whether o r n o t t h e f o r m u l a t i o n adopted m i g h t have
t h e e f f e c t o f making t h e e x e r c i s e o f t h e r i g h t b y t h e accused i n a p a r t i c u l a r
case dependent upon i t s e x e r c i s e b y t h e p r o s e c u t i o n i n t h a t case.
87. The v i e w was expressed t h a t t h e w o r d i n g o f sub-paragraph ( e ) d i d n o t
a d e q u a t e l y p r o v i d e f o r t h e r i g h t s o f accused persons who d i d n o t u n d e r s t a n d t h e
l a n g u a g e used b y t h e c o u r t . I t was n o t s u f f i c i e n t t h a t t h e accused s h o u l d be
e n t i t l e d t o t h e f r e e assistance o f an i n t e r p r e t e r d u r i n g t h e proceedings i n
court; i t was necessary t h a t he s h o u l d a l s o have t h a t a s s i s t a n c e i n
a c q u a i n t i n g h i m s e l f w i t h a l l t h e documentary evidence t h a t m i g h t e x i s t i n t h e
case.
88. When sub-paragraph ( f ) was o r i g i n a l l y adopted i n t h e f o r m o f t h e p r o v i s i o n
"No one s h a l l be compelled t o t e s t i f y a g a i n s t h i m s e l f o r t o confess g u i l t , " t h e
f o l l o w i n g a d d i t i o n a l words were r e j e c t e d : " o r be i n d u c e d t o make such a
c o n f e s s i o n b y a promise o f r e w a r d o r i m m u n i t y . "
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31/
The p o s i t i o n o f j u v e n i l e s '
89- W h i l e t h e r e was no o b j e c t i o n t o t h e p r i n c i p l e c o n t a i n e d i n p a r a g r a p h 3, some
doubt was expressed as t o whether i t s h o u l d appear i n t h e covenant, o r a t l e a s t
in article l4.

32/
Compensation f o r m i s c a r r i a g e o f j u s t i c e
90. There was a d i f f e r e n c e o f o p i n i o n as t o whether t h e p r i n c i p l e o f compensation
f o r m i s c a r r i a g e o f j u s t i c e s h o u l d be i n c l u d e d i n t h e covenant. I t was argued on
the one hand t h a t t h e payment o f compensation was a m a t t e r f o r t h e e x c l u s i v e
d i s c r e t i o n o f t h e e x e c u t i v e and t h a t n a t i o n a l approaches v a r i e d c o n s i d e r a b l y ; and
on t h e o t h e r hand t h a t t h e r i g h t t o compensation o f a person h a v i n g s u f f e r e d
m i s c a r r i a g e o f j u s t i c e was b a s i c and s h o u l d be made e n f o r c e a b l e a g a i n s t t h e
S t a t e , as was t h e r i g h t d e a l t w i t h i n a r t i c l e 9, paragraph 5, o f t h e covenant.
91. The q u e s t i o n was asked whether p a r a g r a p h 4 had s u c c e s s f u l l y e x c l u d e d t h e
p o s s i b i l i t y t h a t t h e S t a t e s p a r t i e s m i g h t be o b l i g e d t o g r a n t compensation i n
33/
cases where d e c i s i o n s had been r e v e r s e d on a p p e a l . '
92. A f u r t h e r p r o v i s i o n t h a t t h e compensation mentioned i n paragraph 4 s h a l l be
awarded t o t h e h e i r s o f a person executed b y v i r t u e o f an erroneous sentence was
excluded f r o m t h e paragraph s i n c e , a t l e a s t i n seme l e g a l systems, t h e e x p r e s s i o n
" h e i r s " would n o t n e c e s s a r i l y r e f e r t o t h e person who s u f f e r e d because o f t h e
death o f t h e v i c t i m of a miscarriage o f j u s t i c e . On t h e o t h e r hand, i t was
argued t h a t i f t h e p r o v i s i o n were n o t i n c l u d e d i n j u s t i c e would be caused s i n c e
the c h i l d r e n o f a person w r o n g f u l l y executed would n o t be l e g a l l y e n t i t l e d t o
compensation f o r t h e i r p a r e n t ' s d e a t h .
31/ E/CN.4/SR.157; 1O6, 167, 199, 18 and 323, E/CN.4/L.l42 and E/cwA/; 44l ;

I1A5. 448 and kk-9.

32/ E/CN.4/SR.1C6 107, 109, 110, 157, 158, 159; 199 > 18, 323 and 324, E/CN.4/L.133
;

and L . I 5 4 and R e v . l and 2 and E/CN.4/232 and C o r r . l , 253, 365, 430, 431 and
694/Add.6, p a r a . 9, ESC ( I X ) , suppl.10, annex I I and ESC ( X l ) , s u p p l . 5 , annex I I .
53/ A t an e a r l i e r stage i t was agreed t o r e g a r d t h e words " f i n a l d e c i s i o n " as
s i g n i f y i n g t h a t a l l o r d i n a r y methods o f r e v i e w and a p p e a l must have been
exhausted and t h a t a l l w a i t i n g p e r i o d s must have e x p i r e d (E/CN.4/SR.158
paragraphs 51 and 54 and E/CN. 4/SR. 159 ;> p a r a g r a p h 7)- T h i s i n t e r p r e t a t i o n was
g i v e n , however, i n r e l a t i o n t o t h e f o l l o w i n g t e x t :
" i n any case where hy a f i n a l d e c i s i o n a person has been c o n v i c t e d o f a
c r i m i n a l o f f e n c e and where s u b s e q u e n t l y a new o r newly d i s c o v e r e d f a c t shows
c o n c l u s i v e l y t h a t t h e r e has been a m i s c a r r i a g e o f j u s t i c e , t h e person who
has s u f f e r e d punishment as a r e s u l t o f such c o n v i c t i o n s h a l l be compensated."
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DCCUMENTATION

Organ and Article

Session Records o f D i s c u s s i o n Other documents number

CHR ( I I ) E/CN.4/AC.1/SR.3; 4 and E/CW.4/AC.1/4, Annex I , A r t i c l e 12,

10- E / C N . 4 / A C O / S R - 5 and
9 and E/CN.4/SR
E/CN.4/AC.I/9, E/CN.4/21,
paragraphs 11 and 18, : - :'.ex A ,
A r t i c l e s 26-7, Annex ,
A r t i c l e s 9 - and Annex G,
A r t i c l e 6, E/CN.4/37, A r t i c l e 10,
E/CN.4/56, p a r a g r a p h 7 and
Chapter I I , A r t i c l e 12 and
ESC ( V l ) s u p p l . 1, paragraphs 23-4,
and Annex , p a r t I a r t i c l e 13 and
part I I

DC ( I I ) E/CM.4/AC.I/SR.25, 30, E/CN.4/AC.l/24/Rev.1, 13

32- 33 and 43 E/CN.4/AC.l/24/Rev.1/Add.1,
E/CN.4/85 and E/CN.4/95,
paragraph 10 and Annex B ;

A r t i c l e 13
CHR ( I I I ) E/CN.4/82/Adda.7, 8 and 12, 13
E/CN.4/85 and 170 and ESC ( V i l ) ,
s u p p l . 2, p a r a g r a p h 14 and
* Annex , A r t i c l e 13

CHR ( V ) E/CN.4/SR-1C6, 107, E/CN.4/170, 232 and C o r r . l , 13

109 and 110 253, 279, 281, 282, 283, 284
and 286 and ESC ( I X ) , suppl.. 10,
Annex I , A r t i c l e 13 and annex I I

CHR ( V I ) E/CN.4/SR.153, 155, E/CN.4/L.4/Rev.l, L.10, p a r a s . 13

P a r t I I , 156, 157, 158,
159, I 6 6 , 167 and 199
38-55, and L . l 6 , E/CN.4/353/Add.lO
and 11, 365, 4 l 4 , 422/Rev.l, 425,
428, 430, 431, 441, 445, 4 4 8 and
449 E/CN.4/NGO/7, p a r a . 5, and
;

ESC ( X l ) s u p p l . 5, p a r a . 51 and
Annex I , A r t i c l e 10 and annex I I

ESC ( V I ) E/AC.7/SR.I48, 1 4 9 and 153 E/L.68, p a r a s . 58-73 10

GA ( V ) 3rd Com. 290th o t g .

; y Annexes, a . i . 63. / / 5 3 4 , 10
paras. 43 and 67 and p a r a . 15
291st r.itg., p a r a s . 4,
56 and 62

ESC ( X I I ) E/C.2/285 10
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Organ and Article

Session Records of D i s c u s s i o n Other documents number
CHR (VII) E/CN.4/525, para. 7, 524, p a r a s . 31 - 10
5, 528, paras. 138-60 and 552,
E/CN.4/NG0.21, s e c t i o n I I I and ESC
( X I I I ) . suppl. 9> Annex I I I ,
Section A

CHR (VIII) E/CN.VSR.318, 323 E/CN.4/528/Add.l, paras. 86-95, 10

and 324 E/CW/"0, paras. 34-5
E/CN.4/L.124, L.133, L.142 and
L . I 5 4 and R e v . l and 2, E/CN.4/
WGO/39 and ESC ( X I V ) , suppl. 4,
pa.ras. 205-23 and Annex I ,
F a r t B, A r t i c l e 12.

CHR (IX) E/CN.4/674, p a r a s . 38-46 12

CHR (X) E/CW.4/o94/Add.6 para. 9 and

; 14
Add.7 and E/CN.4/702,
Communication Nos. I X and XV

GA (IX) 3rd. Com., 565th mtg., 14

para. 28, 566th, para. 20,
568th, paras 8 and 10 and
580th, para. 13.
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ARTICLE 15

P r o h i b i t i o n of r e t r o a c t i v e a p p l i c a t i o n of c r i m i n a l law

1. No one s h a l l be held g u i l t y of any c r i m i n a l offence

on. account of any a c t or omission which d i d not c o n s t i t u t e
a c r i m i n a l offence, under n a t i o n a l or i n t e r n a t i o n a l law, a t
the t i n e when I t was committed. Nor s h a l l a h e a v i e r
penalty be imposed than the one t h a t was a p p l i c a b l e a t the
time when the c r i m i n a l offence was committed. I f , subsequent
t o the commission of the offence, p r o v i s i o n i s made by law
f o r the imposition of a l i g h t e r penalty, the offender s h a l l
b e n e f i t thereby.

2. Nothing i n t h i s a r t i c l e s h a l l p r e j u d i c e the t r i a l and

punishment of any person f o r any a c t or omission which, a t
the time i t was committed, was c r i m i n a l according t o the
general p r i n c i p l e s of law recognized by the community of
nations.

93. A r t i c l e 15 which p r o h i b i t s the r e t r o a c t i v e a p p l i c a t i o n of c r i m i n a l law

a p p l i e s both t o the d e f i n i t i o n of offences and t o the s e v e r i t y of t h e i r punishment
94- . The reference i n paragraph 1 t o i n t e r n a t i o n a l law i s intended t o secure that
no one s h a l l escape punishment f o r a c r i m i n a l offence under i n t e r n a t i o n a l law by
pleading t h a t h i s a c t was l e g a l under h i s own n a t i o n a l law. I t was observed t h a t
conversely, the reference t o i n t e r n a t i o n a l law c o n s t i t u t e d an a d d i t i o n a l guarantee
of s e c u r i t y t o the i n d i v i d u a l , when i t protected from p o s s i b l e a r b i t r a r y a c t i o n
even by an i n t e r n a t i o n a l organization.
95- I t was argued t h a t the t h i r d sentence of paragraph 1 c o n t r a d i c t e d the
assumption underlying the second sentence, namely t h a t a penalty must be t h a t
which was authorized by the law i n f o r c e a t the time-of i t s imposition. It
was a l s o s a i d that, notwithstanding the praiseworthiness of the goal a t which
the t h i r d sentence aimed, i t was not appropriate t o make p r o v i s i o n f o r i t i n
the covenant, since i t would seem t o mean t h a t convicted persons would be
enabled a s of r i g h t t o demand t h a t they should b e n e f i t from any change made
i n the law a f t e r t h e i r c o n v i c t i o n . I t was a s s e r t e d t h a t the executive authority
of S t a t e s p a r t i e s t o the covenant should r e t a i n an absolute discretion i n
applying the b e n e f i t s of subsequently enacted l e g i s l a t i o n t o such persons.
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I n opposition to these views i t was observed t h a t the tendency i n modern

c r i m i n a l law was to allow a person to enjoy the b e n e f i t of such l i g h t e r
p e n a l t i e s as might be imposed a f t e r the commission of the offence with which he
was chargedj the laws imposing new and l i g h t e r p e n a l t i e s were often the concrete
expression of some change i n the a t t i t u d e of the community towards the offence
in question.
96. I t was argued t h a t the second paragraph of the a r t i c l e was superfluous:
i f , as was claimed, i t was intended as a confirmation of the p r i n c i p l e s applied
by the war crimes t r i b u n a l s a f t e r the Seqpnd World War, i t might have the
opposite e f f e c t of c a l l i n g i n t o question the v a l i d i t y of the judgments of those
tribunals; and i f i t was intended as a guarantee t h a t no a l l e g e d war criminal
i n the future would be able to argue t h a t there were no p o s i t i v e p r i n c i p l e s of
i n t e r n a t i o n a l law or of r e l e v a n t n a t i o n a l law q u a l i f y i n g h i s a c t s as crimes,
i t merely r e i t e r a t e d what was a l r e a d y contained i n the expression "international
law" i n the f i r s t paragraph, since that term included "the g e n e r a l l y recognized
p r i n c i p l e s of law" mentioned a t the end of the second paragraph. On the other
hand, the view was heard t h a t the saving p r o v i s i o n s e t f o r t h i n paragraph 2
had no a p p l i c a t i o n to p a s t c o n v i c t i o n s f o r war crimes, nor was i t f u l l y covered
by the term " i n t e r n a t i o n a l law" contained i n the f i r s t paragraph.
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DOCUMENTATION

Organ and Article

Session Records of d i s c u s s i o n Other documents Ilumber

( I I ) E/CN.4/AC.I/SR.3, 8 E / C N . 4 / 2 1 , paras. 1 1 and 1 4 ,

and 10, /// Annex Aj a r t . 26, annex B . ;

SR.5 and 9 and E / C N . 4 / a r t . 1 2 , annex C , a r t s . 9 -

SR.Jo-37 and annex G, a r t . 6, E / C N . 4 /
37. a r t . 1 0 , E/CN.4/56,
chap. I I , a r t . 15 and E S C ( V l ) ;

suppl. I , p a r a s . 25-4 and

annex B, a r t i c l e 1 4

DC ( I I ) E/CN.4/AC.l/SR.25 E/CN.4/85, E/CN.4/95; para. 10 14

and 5O-5I and annex B, a r t i c l e l 4

CHR ( I I I ) E/CN.4/82/Adda. 7, 8 and 11, 14

E/CN.4/85 and ESC ( V I I ) ,
suppl. 2, para, 1 4 and
annex B, a r t i c l e l 4

CHR (V) E/CN.4/SR.112 and E/CN.4/l70, 188, 199; 228, 253 14

Corr.1 and 253 and ESC ( I X ) , suppl. 10
annex I , a r t i c l e lh

CHR ( V I ) E/CN.4/SR.159 and 199 E/CN.4-/355/Add.lO, 565 and 425, lh

E/CN.4/L.5, L . 1 0 , p a r a s . 56-62,
L . 1 0 / C o r r . l and L . l 6 and ESC
(Xl), suppl. 5, p a r a . 51 and
Annex I , a r t i c l e 11

ESC ( X I ) E / A C 7 / S R . 1 4 8 and 155 E / L . 6 8 , p a r a s . 74-5 and /.2/ 11

259/Add.l, s e c t i o n I ( 2 ) ( C )

GA (V) A/C.5/SR.290, para. 68 Annexes, i . a . 65, A/C.5/554, 11

para. 9

CHR ( V I I ) E/CN.4/524, p a r a s . 56-8, 11

E/CN.4/528, p a r a s . l 6 l - 4 ,
E/CN.4/552, chapter I I , s e c t i o n I I
and ESC ( X I I I ) , suppl. 9, annex I I I ,
s e c t i o n A.

CHR ( V I I I ) E/CN.4/SR.524 E/CN.4/528/Add.l, p a r a s . 96-7, 11

E/CN.4/L.196 and L.197, E/CN.4/
NGO/59 and ESC ( X I V ) suppl. 4,
paras. 224-29 and annex I , p a r t
B, a r t i c l e 13
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DOCUMENTATION (cont'd)
Organ ar.cl Article
Session Records of d i s c u s s i o n Other documents Number

CHR ( X ) E/CN.y69<yAdd.7 15

ESC (SVIII) E/AC7/SR.289 15

GA ( I X ) 3rd Comm., 571st mtg., 15

para. 39-
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ARTICLE l 6

Recognition a s a person before t h e law

Everyone s h a l l have t h e r i g h t t o r e c o g n i t i o n everywhere a s

a person before t h e law.

97. The present t e x t i s based on A r t i c l e 6 of the U n i v e r s a l D e c l a r a t i o n o f

Human R i g h t s . That a r t i c l e was understood t o apply to human beings, not t o
" j u r i d i c a l persons", and the expression "as a person before the law" was meant
to assure r e c o g n i t i o n of the l e g a l s t a t u s o f every i n d i v i d u a l and o f h i s
34/
c a p a c i t y t o e x e r c i s e r i g h t s and enter into c o n t r a c t u a l obligations.
98. O r i g n a l l y a d r a f t a r t i c l e providing t h a t "no person s h a l l be deprived o f h i s
j u r i d i c a l p e r s o n a l i t y " was proposed. However, such a t e x t was not considered
s u f f i c i e n t l y c l e a r and p r e c i s e , p a r t i c u l a r l y since " d e p r i v a t i o n of j u r i d i c a l
p e r s o n a l i t y " d i d not have a w e l l - d e f i n e d meaning i n some systems o f law.

DOCUMENTATION

Organ and Records of Article

session discussion Other documents number
DC ( I ) E/CN / . l/4/Add.l; E/CN /21,
annex G, a r t . 7

CHR ( I I ) E/CN.4/AC.3/SR.5; E/CN.4/39; 56; chapt. I I , a r t . 14; 7

E/CN.4/SR.37 ESC ( V l ) , suppl. 1, annex B, 14
p a r t s I and I I , a r t . 15

DC ( I I ) E/CN /. I/SR. 25 E/CN / . 1/19, a r t . 15; 15

E/CN.4/82/Rev.l, 82/Add.8, 12; 85; 95

CHR (V) E/CN /SR. 113 E/CN.U/l70: 232; 253; 278; ESC ( L X ) , 15
suppl. 10, annex I , a r t . 15

CHR ( V I ) E/CN.4/SR.159, 199 E/CN.4/353/Add.10; 35; E / C N . 4 / L . 3 , 15

l6: ESC ( X l ) , suppl. 5, annex I ,
a r t . 12

ESC (XI) E/AC.7/SR.1V7, 12

148

GA (V) 3rd Com., 289th, 12

290th, 291st mtgs.

34/ GA ( I I I ) , 3rd Com., 111th mtg.

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DOCUMENTATION (cont'd)

Organ and Record of Article

session discussion Other documents number
CHR ( V I I ) E/CN.4/515/Add.l2; 528, paras.165-I67 15

CHR ( V I I I ) E/CN.VSR.324 E/CNA/528/Add.l, paras. 98-99, 15

668/Add.lO; ESC (), suppl. k,
para. 23, and annex I B , a r t . ih
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ARTICLE 17

P r i v a c y , home, correspondence, honour and r e p u t a t i o n

1. No one s h a l l he subjected t o a r b i t r a r y or unlawful

i n t e r f e r e n c e with h i s p r i v a c y , home or correspondence, nor to
unlawful a t t a c k s on h i s honour and r e p u t a t i o n .

2. Everyone has the r i g h t t o the p r o t e c t i o n of the law against

such i n t e r f e r e n c e or a t t a c k s .

99- I n t h e d i s c u s s i o n of t h i s a r t i c l e , no d i f f e r e n c e of opinion arose as to

the p r i n c i p l e involved. I t was pointed out t h a t p r i v a c y , the s a n c t i t y of the
home, the s e c r e c y o f correspondence and t h e honour and r e p u t a t i o n of persons
were protected under t h e c o n s t i t u t i o n s or laws of most, i f not a l l , countries.
Moreover, the r i g h t of everyone t o p r o t e c t i o n from " a r b i t r a r y i n t e r f e r e n c e w i t h
h i s p r i v a c y , family, home or correspondence" and from " a t t a c k s upon h i s honour
and r e p u t a t i o n " was proclaimed i n A r t i c l e 12 of the U n i v e r s a l D e c l a r a t i o n
of Human R i g h t s . However, the view was expressed t h a t i t would be v e r y d i f f i c u l t
to t r a n s l a t e the g e n e r a l p r i n c i p l e s enunciated i n A r t i c l e 12 of the D e c l a r a t i o n
i n t o p r e c i s e l e g a l terms, e s p e c i a l l y i n the form of a b r i e f a r t i c l e i n the
covenant which would be a p p l i c a b l e to a l l l e g a l systems o f t h e world. Against
t h i s view, i t was argued t h a t the covenant would s u f f e r a s e r i o u s omission
i f i t f a i l e d t o include an a r t i c l e on such an elementary r i g h t as the r i g h t t o
p r i v a c y , home, correspondence, honour and r e p u t a t i o n . Such an a r t i c l e could
l a y down a general r u l e , l e a v i n g the exceptions thereto and the methods of
a p p l i c a t i o n t o the l e g i s l a t i o n of each c o n t r a c t i n g S t a t e .

100. The f i r s t clause of the a r t i c l e , guaranteeing t o every person the r i g h t to

p r o t e c t i o n from " a r b i t r a r y or unlawful i n t e r f e r e n c e w i t h h i s p r i v a c y , home or
correspondence" and from "unlawful a t t a c k s on h i s honour and r e p u t a t i o n " seeks
to protect the i n d i v i d u a l not only against a c t s of p u b l i c a u t h o r i t i e s , but a l s o
of p r i v a t e persons. The view was expressed t h a t the a r t i c l e should be confined
to imposing r e s t r a i n t s on governmental a c t i o n and should not d e a l with a c t s of
p r i v a t e i n d i v i d u a l s which were a matter f o r municipal legislation. I t was
feared t h a t the a r t i c l e a s formulated might be construed as r e q u i r i n g changes
to be made i n e x i s t i n g r u l e s of p r i v a t e law and t h i s would r a i s e considerable
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difficulties p a r t i c u l a r l y f o r c o u n t r i e s w i t h Anglo-Saxon l e g a l t r a d i t i o n s . On
the other hand, i t was pointed out t h a t the a r t i c l e , which was couched i n general
terms, merely enunciated p r i n c i p l e s , l e a v i n g each S t a t e f r e e to decide how
those p r i n c i p l e s were to he put i n t o e f f e c t .
101. There was some d i s c u s s i o n of the meaning and scope of the expression
" a r b i t r a r y or unlawful i n t e r f e r e n c e " . Some thought t h a t a d i s t i n c t i o n should
be made between " a r b i t r a r y " i n t e r f e r e n c e by p u b l i c a u t h o r i t i e s and "unlawful"
i n t e r f e r e n c e by p r i v a t e persons. I n t e r f e r e n c e by p u b l i c a u t h o r i t i e s could be
l a w f u l and yet " a r b i t r a r y " ; i n t e r f e r e n c e by a p r i v a t e person would be "unlawful".
Others thought t h a t the a r t i c l e should p r o t e c t the i n d i v i d u a l a g a i n s t " a r b i t r a r y "
and "unlawful" i n t e r f e r e n c e by p r i v a t e persons as w e l l as by p u b l i c a u t h o r i t i e s .
102. The use of the terms "privacy, home or correspondence" was criticized on the
ground t h a t t h e i r p r e c i s e l e g a l i m p l i c a t i o n s were not c l e a r . Objections to the
use of the term " a r b i t r a r y " were a l s o r a i s e d . I t was suggested t h a t the term
"unreasonable" was p r e f e r a b l e to " a r b i t r a r y or unlawful". A proposal was also
made to add "unreasonable" to the words " a r b i t r a r y " and "unlawful" i n qualifying
" i n t e r f e r e n c e " , but the proposal was rejected. I n support of the proposal i t
was maintained t h a t the term " a r b i t r a r y " conveyed merely the notion of
c a p r i c i o u s n e s s , while the word "unreasonable" had a much broader meaning. An
a c t i o n or a law might not be a r b i t r a r y and yet could be unreasonable. On the
other hand, i t was pointed out t h a t the term "unreasonable" d i d not have a
p r e c i s e l e g a l meaning i t s e l f . I t was r e c a l l e d t h a t when A r t i c l e 12 of the
U n i v e r s a l D e c l a r a t i o n was adopted, the General Assembly had p r e f e r r e d the
term " a r b i t r a r y " to "unreasonable" as conveying both the notion of illegality
and of unreasonableness.
103- The second part of the f i r s t c l a u s e guarantees p r o t e c t i o n against
"unlawful a t t a c k s " on the honour and r e p u t a t i o n of an i n d i v i d u a l . The insertion
of "unlawful" before " a t t a c k s " was intended to meet the o b j e c t i o n t h a t , unless
q u a l i f i e d , the clause might be construed i n such a way as to s t i f l e f r e e
expression of p u b l i c opinion. I t was thought t h a t the law could protect the
i n d i v i d u a l only against "unlawful" or "abusive" or "unwarranted" a t t a c k s on h i s
honour and reputation, and t h a t f a i r comments or t r u t h f u l statements which
might a f f e c t an i n d i v i d u a l ' s honour or r e p u t a t i o n should not be considered as
" a t t a c k s on h i s honour and r e p u t a t i o n . " An o b j e c t i o n was r a i s e d to the use
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of t h e term " a t t a c k s " which was thought t o he u n s u i t a b l e i n an i n t e r n a t i o n a l

treaty.
l O h . The second clause provides that "everyone has t h e r i g h t t o p r o t e c t i o n o f
the law a g a i n s t such i n t e r f e r e n c e or a t t a c k s . " The need f o r such a clause
was questioned since a r t i c l e 2 o f the d r a f t covenant already provided that each
S t a t e p a r t y would undertake "to take t h e necessary steps...to adopt such
l e g i s l a t i v e or other measures as may be necessary t o give e f f e c t t o the r i g h t s
recognized i n t h i s covenant." On the other hand, i t was contended t h a t the
a d d i t i o n o f the clause would not be superfluous. I t was not enough t o
recognize t h e r i g h t o f everyone not t o be subjected t o a r b i t r a r y o r unlawful
i n t e r f e r e n c e w i t h h i s p r i v a c y , home or correspondence o r t o unlawful a t t a c k s on
h i s honour and reputation; h i s r i g h t t o be protected by the law against such
i n t e r f e r e n c e o r a t t a c k s must a l s o be e x p r e s s l y recognized. Misgivings were
r a i s e d concerning t h e use of the term " p r o t e c t i o n " s i n c e i t might be understood
to imply t h a t S t a t e s were bound t o suppress, o r censor i n advance, views
thought t o be unlawful. The expression "protection of the law" however could
not be i n t e r p r e t e d a s a u t h o r i z i n g censorship, s i n c e t h a t would v i o l a t e the
p r o v i s i o n s concerning freedom of opinion and expression s e t f o r t h i n a r t i c l e 19
of the d r a f t covenant.

DOCUMENTATION

Organ and Records o f

session discussion Other documents Article
DC ( I I ) E/CN. V A C . 1/21 n u m b e r

CHR ( V I ) E/CN.V353/Add.3; ESC ( X l ) , suppl.5,

annex I I I

ESC (XI) E/AC.7/SR.149 E/C.2/25U/Add.l; E / L . 6 8 , para. 99

GA ( V ) 3rd Com., GA ( V ) , annexes, a . i . 63,

291st mtg. A/C.3/53Vpara. 6

CHR ( V I I ) E/CN.V515/Add.6; 528, para. 23-27

CHR ( V I I I ) E/CN.V528/Add.l; 66O, para. 12;

ESC (XTV), suppl. k, annex I I , sect.A,
part V I , and annex IV
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DOCUMENTATION (cont'd)

Organ and Records of Article

session discussion Other documents number

CHR ( I X ) //SR. 373-376 E/CN.4/674, paras. 1I+-I6; L.265;

E S C ( X V I ) , suppl. 8, paras. 65-71,
annex I B, a r t . 17, and annex I I I ,
paras. 29-34

CHR (X) E/CN.4/69VAdd.2, 6 17

GA ( I X ) 3rd Com., 562nd, 17

565th, 567th mtgs.
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ARTICLE 18

Freedom o f Thought, Conscience and R e l i g i o n

1 . Everyone s h a l l have the r i g h t t o freedom of thought,

conscience and r e l i g i o n . T h i s r i g h t s h a l l i n c l u d e freedom
to maintain o r t o change h i s r e l i g i o n or b e l i e f , and freedom
e i t h e r i n d i v i d u a l l y or i n community w i t h others and i n p u b l i c
or p r i v a t e , t o manifest h i s r e l i g i o n or b e l i e f i n worship,
observance, p r a c t i c e and teaching.

2. No one s h a l l be subject t o coercion which would impair h i s

freedom t o maintain or t o change h i s r e l i g i o n o r b e l i e f .

3. Freedom to manifest one's r e l i g i o n or b e l i e f s may be subject

only t o such l i m i t a t i o n s as a r e p r e s c r i b e d by law and a r e
n e c e s s a r y t o p r o t e c t p u b l i c safety, order, h e a l t h , or morals or
the fundamental r i g h t s and freedoms of o t h e r s .

105. The debate on t h i s a r t i c l e seemed t o focus on t h r e e main i s s u e s : the

nature or concept of "freedom of thought, conscience and r e l i g i o n " , t h e r i g h t
"to change" or "to maintain" one's r e l i g i o n or b e l i e f , and t h e scope of
legitimate l i m i t a t i o n s of "freedom to manifest one's r e l i g i o n or b e l i e f " .

35 /
Freedom of thought, conscience and r e l i g i o n : '
106. During the debate on t h i s a r t i c l e , freedom of thought, conscience and
r e l i g i o n was f r e q u e n t l y c h a r a c t e r i z e d as "absolute", "sacred" and " i n v i o l a b l e "
The f i r s t c l a u s e of the a r t i c l e t h e r e f o r e d e c l a r e d i n c l e a r and simple terms,
and without q u a l i f i c a t i o n s , that "everyone s h a l l have t h e r i g h t t o freedom o f
thought, conscience and r e l i g i o n " . No r e s t r i c t i o n s of a l e g a l c h a r a c t e r , i t was
g e n e r a l l y agreed, could be imposed upon man's inner thought or moral
consciousness, or h i s a t t i t u d e towards t h e universe or i t s c r e a t o r ; only
e x t e r n a l m a n i f e s t a t i o n s of r e l i g i o n or b e l i e f might be subject to legitimate
limitations.

35/ E/CN.1+/AC.1/SR.10, 26; E/CN.VSR.116, 117, 319; E/CN/82/Rev. 1,

82/Add.2, 85, 528; E/L.68; A/C.3/SR.289.
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107. The question was r a i s e d whether the words "thought" and " b e l i e f " i n t h i s
a r t i c l e were intended t o he d i f f e r e n t concepts. The question was a l s o r a i s e d
whether t h e r e was any c l e a r - c u t d i s t i n c t i o n between "the r i g h t t o freedom of
thought" i n t h i s a r t i c l e and "the r i g h t t o hold opinions without interference"
i n the next a r t i c l e .

36/
Freedom t o maintain or t o change one's r e l i g i o n '
108. The f i r s t d r a f t s o f the a r t i c l e contained a p r o v i s i o n t o the e f f e c t t h a t
everyone should have "freedom t o change h i s r e l i g i o n or b e l i e f " . Against t h i s
p r o v i s i o n , i t was argued t h a t the r i g h t t o change one's r e l i g i o n was a l r e a d y
i m p l i c i t i n the concept of "freedom of r e l i g i o n " and t h e r e f o r e need not be
mentioned s p e c i f i c a l l y . I t was a l s o argued t h a t the covenant should not lend
i t s support t o any r e l i g i o u s body i n i t s p r o s e l y t i s i n g or m i s s i o n a r y e n t e r p r i s e ,
nor should i t be i n s t r u m e n t a l i n c r e a t i n g any doubt i n the mind of any b e l i e v e r
of the t r u t h of h i s b e l i e f . Furthermore, a p r o v i s i o n i n the covenant on the
r i g h t to change one's r e l i g i o n , i t was contended, would c r e a t e u n c e r t a i n t y and
d i f f i c u l t y f o r those S t a t e s whose c o n s t i t u t i o n s or b a s i c laws were r e l i g i o u s
i n o r i g i n or i n c h a r a c t e r . I t was a l s o thought t h a t , s i n c e the a r t i c l e as a
whole d e a l t w i t h freedom of "thought", "conscience" and " r e l i g i o n " , any
e l a b o r a t i o n of freedom of " r e l i g i o n " without a corresponding e l a b o r a t i o n of
freedom o f "thought" and"conscience" would make the a r t i c l e somewhat
unbalanced.
109- On the other hand, the opinion was expressed t h a t the r i g h t t o change one's
r e l i g i o n should be s p e c i a l l y emphasized i n view of the f a c t t h a t there were
r e l i g i o u s bodies which discouraged r e l i g i o u s conversions, and laws which
recognized S t a t e r e l i g i o n s and d i s c r i m i n a t e d a g a i n s t non-believers of such

36/ E / C N . V A C . 3 / S R . 5 J E / C N . U / S R . I I 6 , 117, l 6 l , 319; E/CW.i+/82/Rev.l, 85, 233,

272, 300, 382, 515/Add.l6, 528, 528/Add.l; E/CN-VL.187; E/2059/Ad- -6~i d

A/C.5/SR.288-29O, 302, 6, 367, 371, 563, 55, 566, 571, 576;

A/C.3/L.75/R e v . l . Amendments on t h i s point were submitted during the f i r s t
reading of the d r a f t covenants a t the n i n t h s e s s i o n of the General Assembly
(GA ( I X ) , a . i . 58, / . 2 2 ) .
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religions. F a i l u r e t o recognize the r i g h t t o change one's r e l i g i o n , i t was

maintained, would he tantamount t o a d e n i a l o f t h a t r i g h t , and would by
i m p l i c a t i o n tend t o abridge the r i g h t o f any r e l i g i o u s body t o c a r r y i t s message
to any corner of the e a r t h .
110. As a compromise i t was agreed t h a t freedom "to maintain" a s w e l l as freedom
"to change" one's r e l i g i o n , two f a c e t s of freedom o f r e l i g i o n , should both be
w r i t t e n i n t o the a r t i c l e . A f u r t h e r p r o v i s i o n was added t h a t "no one s h a l l be
s u b j e c t t o coercion which would impair h i s freedom t o maintain o r t o change
h i s r e l i g i o n or b e l i e f " . I t was understood t h a t the word "coercion" i n t h i s
context should not be construed a s applying t o moral o r i n t e l l e c t u a l
persuasion, or t o any l e g i t i m a t e l i m i t a t i o n o f freedom t o manifest one's r e l i g i o n
or b e l i e f .
111. There was another proposal t h a t "any change o f r e l i g i o n made u n l a w f u l l y o r
t o evade o b l i g a t i o n s under the law governing the p e r s o n a l s t a t u s of t h e person
concerned s h a l l be d e c l a r e d n u l l and void". T h i s proposal was not adopted, f o r
i t was thought t h a t t h e question of r e l i g i o u s conversion a s such should be
d i s t i n g u i s h e d from the question of personal s t a t u s , t h e former being spiritual
i n c h a r a c t e r , the l a t t e r being a l e g a l matter.

37/
Limitations clause
112. The l i m i t a t i o n s c l a u s e of a r t i c l e l8on freedom o f thought, conscience and
r e l i g i o n , and those o f a r t i c l e 19 on freedom o f opinion and expression,
a r t i c l e 20 on the r i g h t o f p e a c e f u l assembly and a r t i c l e 21 on freedom o f
a s s o c i a t i o n were d r a f t e d , r e v i s e d and adopted a t d i f f e r e n t times and were
consequently couched i n varying terms as regards such expressions as " n a t i o n a l
s e c u r i t y " , "public order", " p u b l i c h e a l t h or morals", e t c . I t was urged t h a t

37/ E / C N . V N G O / I O , 21, 26; E/CWA/AC.3/SR.5; E/CN.I+/AC.I/SR.26J E/CNA/SR.ll6,

I I 7 , I I 9 , 160, 319; E/CNA/82/Add.2, 85, 170, 272, 301, 365, 515/Add.l2,
13, 524, 528; E / L . 6 8 .
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t h e s e c l a u s e s should he drawn up i n a uniform manner, except where a d i f f e r e n c e

i n substance was intended, i n order t h a t no s e r i o u s i s s u e s of i n t e r p r e t a t i o n and
a p p l i c a t i o n would a r i s e i n the f u t u r e . However, no a c t i o n on t h i s matter was
taken.
113- The E n g l i s h expression " p u b l i c order" and the French expression "l'ordre
p u b l i c " gave r i s e t o considerable discussion. I t was observed t h a t t h e E n g l i s h
expression "public order" was not equivalent t o - and indeed was s u b s t a n t i a l l y
d i f f e r e n t from - t h e French expression " l ' o r d r e p u b l i c " (or t h e Spanish
expression "orden p u b l i c o " ) . I n c i v i l law c o u n t r i e s "l'ordre public" i s a l e g a l
concept used p r i n c i p a l l y as a b a s i s f o r negating o r r e s t r i c t i n g p r i v a t e
agreements, t h e e x e r c i s e o f p o l i c e power or t h e a p p l i c a t i o n o f f o r e i g n law. In
common law c o u n t r i e s t h e expression " p u b l i c o r d e r " . i s not a recognized l e g a l
concept and i s o r d i n a r i l y used t o mean the absence o f p u b l i c d i s o r d e r . The
common law counterpart o f " l ' o r d r e p u b l i c " i s " p u b l i c p o l i c y " r a t h e r than
" p u b l i c order". The use of t h e expression " p u b l i c order" or " l ' o r d r e p u b l i c " i n
the l i m i t a t i o n s c l a u s e would c r e a t e u n c e r t a i n t y and might c o n s t i t u t e a b a s i s
f o r f a r - r e a c h i n g derogations from the r i g h t s guaranteed. One proposal was
made t o change t h e " p r o t e c t i o n o f p u b l i c order" t o t h e "prevention of p u b l i c
disorder". Another proposal was t o add a f t e r t h e expression " p u b l i c order" a
modifying clause " i n a democratic s o c i e t y " .

Ilk. The l i m i t a t i o n s c l a u s e of a r t i c l e l 8 contains t h e expression "public safety^'

t h a t of a r t i c l e 19 t h e expression " n a t i o n a l s e c u r i t y " , and those o f a r t i c l e s
20 and 21 t h e expression "national s e c u r i t y or public safety". I t was noted
t h a t these expressions were not c o n s i s t e n t . I t was a l s o observed t h a t the
terms " n a t i o n a l s e c u r i t y " and " p u b l i c s a f e t y " were not s u f f i c i e n t l y p r e c i s e t o
be used as a b a s i s f o r t h e l i m i t a t i o n of the e x e r c i s e o f the r i g h t s
guaranteed.

38/
The r i g h t of parents '

115- There were s e v e r a l proposals t o t h e e f f e c t t h a t i n t h e case of a minor

the parent or guardian should have the r i g h t to determine what form of r e l i g i o u s

38/ E/CNA/NG0/10, 12; E/CNA/SR.ll, 117, l60, l 6 l ; E/CN /226, 272, 300,
429.
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education he should r e c e i v e . Against these proposals, i t was s t a t e d t h a t the

age a t which a minor ceased t o he a minor v a r i e d i n d i f f e r e n t c o u n t r i e s . I t was
f u r t h e r s t a t e d t h a t i f the r i g h t of the parent to determine what form o f
r e l i g i o u s education the minor should r e c e i v e were w r i t t e n into t h e a r t i c l e , t h e
r i g h t of the parent t o give t h e minor a p u r e l y s e c u l a r education should a l s o
he guaranteed. While there was g e n e r a l agreement t h a t r e l i g i o u s education should
not he imposed upon t h e minor a g a i n s t the w i l l of the parent, i t was thought
39/

t h a t the proper place f o r such a p r o v i s i o n would he i n an a r t i c l e on e d u c a t i o n . '

R i g h t s of r e l i g i o u s bodies

I I 6 . Proposals were made t h a t freedom of r e l i g i o n should i n c l u d e freedom of

r e l i g i o u s denominations o r communities t o organize themselves, t o perform
missionary, educational and medical work, t o enjoy c i v i l or c i v i c r i g h t s , e t c .
Two a t t i t u d e s regarding such proposals were evident. On the one hand, i t was
emphasized t h a t any r e l i g i o u s s e c t or order, as a corporate body, should have an
inherent r i g h t to perpetuate i t s own mode of l i f e and t o propagate i t s d o c t r i n e .
On the other hand, i t was argued t h a t the m i s s i o n a r y s o c i e t y of one r e l i g i o n
often tended, t o undermine the fundamental f a i t h of another r e l i g i o n and might
t h e r e f o r e c o n s t i t u t e a source of i n t e r - r e l i g i o u s misunderstanding or f r i c t i o n .
No d e c i s i o n was made on the proposals and the a r t i c l e d i d not contain any provision
on r i g h t s of r e l i g i o u s bodies. Another proposal was made t h a t "every person
of f u l l age and sound mind" should be f r e e "to endeavour t o persuade other
persons of f u l l age and sound mind of the t r u t h of h i s b e l i e f s " . T h i s proposal,
once accepted, was e v e n t u a l l y r e j e c t e d .
Acts c o n t r a r y to r e l i g i o u s observance or p r a c t i c e ^

117- A proposal t h a t no one should be r e q u i r e d t o do any a c t which was c o n t r a r y t o

h i s r e l i g i o u s observance or p r a c t i c e was not adopted. Although t h e r e was no

39/ See para. 3 of a r t i c l e ih of the d r a f t covenant on economic, s o c i a l and

cultural rights.
kO/ E /ON A/AC . 3/SR. 5 ; E / C N A / A C . 1 / S R . 1 0 , 26; E/CNA/SR.37, ll6, 117;
E/CN A/82/Rev. 1.
hi/ //GO/l and Add.l, 11; E / C N A / A C . 3/SR. 5; E/CNA/SR .ll6, 117, l 6 l ;
E/CNA/365.
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o b j e c t i o n i n p r i n c i p l e to t h e proposal i t was thought t h a t i t might not always

he p o s s i b l e t o apply such a p r o v i s i o n e s p e c i a l l y i n c o u n t r i e s where many
d i f f e r e n t r e l i g i o n s were p r a c t i s e d . Another proposal which was not adopted was
t h a t "persons who c o n s c i e n t i o u s l y object t o war as being contrary t o t h e i r
W
r e l i g i o n s h a l l be exempt from m i l i t a r y s e r v i c e " . -
/
A proposal f o r a b r i e f e r a r t i c l e
l l 8 . A b r i e f e r a r t i c l e was proposed which read as f o l l o w s : "Every person s h a l l
have the r i g h t t o freedom of thought and freedom t o p r a c t i c e r e l i g i o u s
observance i n accordance with the laws of the country and the d i c t a t e s of p u b l i c
morality". T h i s t e x t was considered too b r i e f and the c l a u s e s "laws of the
country" and " d i c t a t e s of p u b l i c m o r a l i t y " were thought t o be too general.

k2/ See a r t i c l e 8 of the d r a f t covenant on c i v i l and p o l i t i c a l r i g h t s f o r a

p r o v i s i o n on conscientious o b j e c t o r s .

/ E/CN/SR.117; E/CN.U/95, 272.

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DOCUMENTATION

Organ and Art.

session Records of d i s c u s s i o n Other documents No.
CHE, DC ( I ) E/CN.tyAC.l/SR.lO E/CN.4/AC.1/4; E/CN.4/21,
annex G, a r t . 8
CHR ( I I ) E/CN.tyAC.3/SR.5 E/CN.4/37, 56; ESC ( V I ) , suppl.1, 8
annex B, p a r t I I , a r t . l 6 15
CHR, DC ( I I ) E / C N . 4 / A C . I / S R . 2 6 E / C N . V A C . 1/19, 33, 35; 16
E/CN.4/95, annex
CHR ( I I I ) E/CN.4/SR.37 E/CN.4/82/Rev.l, 82/Add.2, 85; 16
ESC ( V I I ) , suppl.2, annex
CHR (V) E/CN.4/SR.ll6, 117, I I 9 E/CN.4/170,226,229,233,272,300, 16
301; ESC ( I X ) , suppl.10,
annexes I and I I
CHR ( V I ) E/CN.4/SR.I6O,I6I E/CN.4/353/Add.l,3;58,365, 16
382,429; E/CN.4/L.5;
E/CN.4/NG0.1 and Add.l, 10-12;
ESC ( X I ) , suppl.5, annexes I and I I ,
art.13
ESC ( X I ) E / A C 7 / S R . 1 4 7 and 148 E/L.68 13
GA (V) 3rd.Ccm.,288th-91st, A/C.3/L.75/Rev.l,99 13
301st, 302nd, 305th,
and 306th mtgs.
CHR ( V I I ) E/CN.4/515/Add.l2,13.l6; 524
528, paras.168-199;ESC ( X I I l ) ,
suppl.9 annexes I and I I I 13

ESC (XIII) E/2059/Add.6 13

GA (VI) 3rd. Com., 367th and
371st mtgs. 13
CHR ( V I I I ) . E/CN.4/SR.319 E/CN.4/528/Add.l, paras.100- 13
104; 66O; E/CN.4/668/Add.7,
E / C N . 4 / L . I 4 3 , 155, 187;
ESC ( X I V ) , suppl.4, paras.
231-37, annex I.B,art.15
CHR ( I X ) 674; ESC (XVI), suppl.8,
annex I.B, a r t . l 8 15
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DOCUMENTATION (cont'd)

Organ and
session fiecords of discussion Other documents
CHR (X) E/CN.V69U/Add.5j ESC ( X V I I l ) ,
suppl.7, annex I . B , a r t . l 8
GA (X) 3rd. Com., 563rd, 565th,
566th, 571st and 576th
________ _ mtgs.
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ARTICLE 19

Freedom of Opinion and Information

1. Everyone s h a l l have the r i g h t t o hold opinions without

interference.

2. Everyone s h a l l have the r i g h t t o freedom of expression;

t h i s r i g h t s h a l l i n c l u d e freedom t o seek, r e c e i v e and impart
information and ideas of a l l k i n d s , r e g a r d l e s s of f r o n t i e r s ,
e i t h e r o r a l l y , i n w r i t i n g or i n p r i n t , i n the form of a r t ,
or through any other media of h i s choice.

3. The e x e r c i s e of the r i g h t s provided f o r i n the foregoing

paragraph c a r r i e s w i t h i t s p e c i a l d u t i e s and r e s p o n s i b i l i t i e s .
I t may t h e r e f o r e be s u b j e c t t o c e r t a i n r e s t r i c t i o n s , but these
s h a l l be such only a s a r e provided by law and a r e necessary,
(1) f o r r e s p e c t of the r i g h t s or r e p u t a t i o n s of others,
(2) f o r the p r o t e c t i o n of n a t i o n a l s e c u r i t y or of p u b l i c order,
or of p u b l i c h e a l t h or morals.

119- While the Commission on Human Rights was d r a f t i n g t h i s a r t i c l e the United

Nations was a l s o engaged i n d r a f t i n g a convention on freedom of information, a
convention on the gathering and i n t e r n a t i o n a l t r a n s m i s s i o n of news and a
convention concerning the i n s t i t u t i o n of an i n t e r n a t i o n a l r i g h t of c o r r e c t i o n .
The question was r a i s e d whether, since a separate convention on freedom of

44/ The United Nations Conference on Freedom of Information, which met i n 1948,
prepared a d r a f t convention on freedom of information, a d r a f t convention
on the gathering and i n t e r n a t i o n a l t r a n s m i s s i o n of news and a d r a f t
convention concerning the i n s t i t u t i o n of an i n t e r n a t i o n a l r i g h t of c o r r e c t i o n
(see the F i n a l A c t of the Conference, E/Conf.6/79)

At i t s t h i r d s e s s i o n the General Assembly i n r e s o l u t i o n 277 ( H i ) of

13 May 1949, approved a d r a f t convention on the i n t e r n a t i o n a l t r a n s m i s s i o n
of news and the r i g h t of c o r r e c t i o n , but r e s o l v e d t h a t the d r a f t convention
should not be open f o r signature u n t i l the General Assembly had taken
d e f i n i t e a c t i o n on the d r a f t convention on freedom of information. At i t s
f o u r t h s e s s i o n the General Assembly, i n r e s o l u t i o n 313 ( I V ) of
20 October 1949, decided t o postpone f u r t h e r a c t i o n on the d r a f t convention
on freedom of information pending r e c e i p t of the d r a f t i n t e r n a t i o n a l
covenant on human r i g h t s . By r e s o l u t i o n 426 (v) of l 4 December 1950 t h e
General Assembly appointed a Committee to prepare a d r a f t convention on
freedom of information, t a k i n g i n t o c o n s i d e r a t i o n the d r a f t approved by
(footnote continued on f o l l o w i n g page)
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information was being d r a f t e d , the covenant on human r i g h t s should include an

a r t i c l e on freedom of expression and information a t a l l . The consensus of
45/
opinion was t h a t the covenant could not ignore freedom of information which
the General Assembly, i n r e s o l u t i o n 59 ( l ) , had d e c l a r e d t o be "a fundamental
human r i g h t " and the "touchstone of a l l the freedoms t o which the United Nations
i s consecrated". Furthermore, the observation was made t h a t the covenant, as a
general instrument on human r i g h t s , could serve a s a l e g a l foundation on the
b a s i s of which a s e r i e s of conventions on p a r t i c u l a r r i g h t s could be formulated.
46/
Freedom of opinion
120. The f i r s t d r a f t s of the a r t i c l e contained a c l a u s e t o the e f f e c t t h a t every
person should have the r i g h t t o freedom of opinion and expression without
i n t e r f e r e n c e by governmental a c t i o n . As the debate on t h i s c l a u s e progressed,
i t became c l e a r t h a t freedom of opinion and freedom of expression were not of the
same c h a r a c t e r : the former was p u r e l y a p r i v a t e matter, belonging as i t d i d t o
the realm of t h e mind, while the l a t t e r was a p u b l i c matter, or a matter of human
r e l a t i o n s h i p , which should be s u b j e c t t o l e g a l as w e l l as moral r e s t r a i n t .

44/ (footnote continued from preceding page)

the United Nations Conference on Freedom of Information and the a r t i c l e on
freedom of expression and information i n the d r a f t covenant on human r i g h t s
and recommended t h a t the Economic and S o c i a l C o u n c i l consider the r e p o r t of
the Committee and, i f i t thought f i t , convene a conference of
p l e n i p o t e n t i a r i e s w i t h a view t o the framing and signature of the
convention. The Committee met i n e a r l y 1951 and prepared a d r a f t convention
on freedom of information (A/AC.42/7). I n r e s o l u t i o n 387 A ( X I I l ) of
1 September 1951 the Economic and S o c i a l Council t r a n s m i t t e d t o the General
Assembly i t s d e c i s i o n not t o convene a p l e n i p o t e n t i a r y conference. At i t s
6th, 7th and 8th s e s s i o n s the General Assembly d i d not study the d r a f t
convention cn freedom of information a r t i c l e by a r t i c l e ( s e e
r e s o l u t i o n s 54l ( V I ) of 4 February 1952, 631 ( V I l ) of 16 December 1952
and 76 A ( V I I I ) of 28 November 1953)- However, a t i t s 7th s e s s i o n i t
adopted a Convention on the I n t e r n a t i o n a l Right of C o r r e c t i o n and
opened i t f o r signature ( r e s o l u t i o n 630 ( V I l ) of l 6 December 1952). I n
r e s o l u t i o n 840 ( I X ) of 17 December 195* the General Assembly requested
the Economic and S o c i a l C o u n c i l t o formulate recommendations concerning the
d r a f t convention on freedom of information. Cn 25 May 1955 the C o u n c i l
adopted r e s o l u t i o n 574 (XIX) recommending t h a t the General Assembly
"consider the d r a f t convention a t i t s t w e l f t h s e s s i o n i n the hope t h a t
conditions w i l l be more favourable a t t h a t time. "

45/ E/CN.4/SR.37, 120, 170, 171.

46/ E/CN.4/SR.162-67, 200, 320-22; E/2256, para. 239; /.3/SR.3CO, 4 l 5 .
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Although i t was recognized t h a t a person was i n v a r i a b l y conditioned or i n f l u e n c e d

by the e x t e r n a l world, i t was g e n e r a l l y agreed t h a t no law could r e g u l a t e h i s
opinion and no power could d i c t a t e what opinion he should or should not e n t e r t a i n .
The d e c i s i o n was made, t h e r e f o r e , t o t r e a t the r i g h t t o freedom of opinion
s e p a r a t e l y from the r i g h t t o freedom of e x p r e s s i o n .
121. O r i g i n a l l y , the E n g l i s h v e r s i o n of the f i r s t paragraph read: "Everyone
s h a l l have t h e r i g h t t o freedom of opinion without i n t e r f e r e n c e " ; t h i s was l a t e r
changed t o read: "Everyone s h a l l have t h e r i g h t t o hold opinions without
interference". The French v e r s i o n was "nul ne peut tre inquit pour s e s
opinions". I t was pointed out t h a t the E n g l i s h and French t e x t s corresponded
n e i t h e r i n substance nor i n s t y l e .
122. As o r i g i n a l l y proposed, the phrase "without i n t e r f e r e n c e " was followed by
the phrase "by governmental a c t i o n " . There were two views regarding t h i s p o i n t .
One was t h a t t h e a r t i c l e was intended t o p r o t e c t t h e i n d i v i d u a l only a g a i n s t -
governmental i n t e r f e r e n c e . The other view was t h a t the a r t i c l e should p r o t e c t
the i n d i v i d u a l a g a i n s t a l l kinds of i n t e r f e r e n c e .
123. The question was r a i s e d whether there was any d i s t i n c t i o n between "freedom
of opinion" i n t h i s a r t i c l e and "freedom of thought" i n t h e preceding a r t i c l e
and, i f so, i n what r e s p e c t or t o what extent. One comment was t o the e f f e c t
t h a t the words "thought" and "opinion", though not i d e n t i c a l , were very c l o s e t o
each other i n meaning; another t h a t t h e two words were not mutually e x c l u s i v e
but complementary t o each other; a t h i r d t h a t "freedom t o hold any opinions
without i n t e r f e r e n c e " was a t r u i s m and t h e r e f o r e superfluous.

hi/
Freedom of expression ~ '
124. The general p r i n c i p l e t h a t "everyone s h a l l have the r i g h t t o freedcm of
expression" was not i n i t s e l f a c o n t r o v e r s i a l i s s u e . D i f f e r e n c e s of opinion
arose on the p r e c i s e scope and substance of freedom of e x p r e s s i o n .
125. The f i r s t question concerned the elements which c o n s t i t u t e d freedcm of
expression. I n paragraph 2 of the a r t i c l e i t was provided t h a t freedom of
expression " s h a l l include freedom t o seek, r e c e i v e and impart information and

kjj E/CNA/SR.I62-6T, 320-22; E/2256, para. 239-4l.

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ideas of a l l k i n d s . . . . " . Whether the a c t of seeking or r e c e i v i n g information was

an a c t of " e x p r e s s i o n " d i d not appear to have been c a r e f u l l y examined. As to the
o b j e c t s of the verbs "to seek, r e c e i v e and impart", v a r i o u s formulations were
proposed: "information and i d e a s " , " f a c t s and i d e a s " , "information of a l l kinds
i n c l u d i n g f a c t s , c r i t i c a l comment and i d e a s " . A compromise formulation
"information and ideas of a l l k i n d s " was adopted. Furthermore, the r i g h t to
freedom of e x p r e s s i o n was not to he l i m i t e d w i t h i n the c o n f i n e s of any political
or t e r r i t o r i a l e n t i t y ; i t was t o be e x e r c i s e d " r e g a r d l e s s of f r o n t i e r s " .
126. The question of- the media through which the r i g h t to freedom of e x p r e s s i o n
might be e x e r c i s e d was e s s e n t i a l l y a question of d r a f t i n g although one p o i n t of
substance was involved. Various wordings were suggested: " E i t h e r o r a l l y , by
w r i t t e n or p r i n t e d matter, i n the form of a r t , or by l e g a l l y operated visual
and auditory d e v i c e s " ; " e i t h e r o r a l l y , i n w r i t i n g or i n p r i n t , I n the form of
a r t , or by duly l i c e n s e d v i s u a l or a u d i t o r y d e v i c e s " ; "through speech, p r e s s ,
a r t or any other media". The c l a u s e "duly l i c e n s e d v i s u a l or auditory d e v i c e s "
and, t o a l e s s e r extent, the c l a u s e " l e g a l l y operated v i s u a l or auditory
d e v i c e s " were objected t o on the grounds t h a t they were s u s c e p t i b l e of a r b i t r a r y
i n t e r p r e t a t i o n and a p p l i c a t i o n which might t h r o t t l e channels of communication.
The t e x t e v e n t u a l l y adopted was a compromise of the s e v e r a l v e r s i o n s . I t read:
" E i t h e r o r a l l y , i n w r i t i n g , or i n p r i n t , i n the form of a r t , or through any
other media of h i s c h o i c e " .

Limitations clause /

127. Proposals were made to s t i p u l a t e t h a t the. r i g h t to freedom of expression

" c a r r i e s w i t h i t d u t i e s and r e s p o n s i b i l i t i e s . . , . " . Those who opposed the
proposals contended t h a t the g e n e r a l purpose of the covenants was to s e t f o r t h
c i v i l and p o l i t i c a l r i g h t s and t o guarantee and p r o t e c t them r a t h e r than to
l a y down " d u t i e s and r e s p o n s i b i l i t i e s " and to impose them upon i n d i v i d u a l s .
Furthermore, they contended t h a t , s i n c e each r i g h t c a r r i e d w i t h i t a corresponding

48/ E/CTU/AC.1/SR.26; E/CN.4/SR.162-167, 320-322; E/CN.4/82/Add.4, 8; 2 2 0 ,

528 and Add.l, 532; E/CN.4/L.125, l44/Rev.l, 1 5 6 / R e v . l , 192, 193; '
E/COWF.6/79, Annex ; E/2256, p a r a . 2 4 2 , 243; E / L . 6 8 ; A/C.3/SR.29O.
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duty and s i n c e i n no other a r t i c l e was the corresponding duty of any r i g h t s e t

out, the present a r t i c l e should not he an exception. Those supporting the
proposals were of the opinion t h a t freedom of e x p r e s s i o n was a precious h e r i t a g e
as w e l l as a dangerous instrument, and they maintained t h a t , i n view of the
powerful i n f l u e n c e the modern media of expression exerted upon the minds of men
and upon n a t i o n a l and i n t e r n a t i o n a l a f f a i r s , the " d u t i e s and r e s p o n s i b i l i t i e s "
i n the e x e r c i s e of the r i g h t t o freedom of expression should be specially
emphasized. The c l a u s e t h a t the r i g h t to freedom of expression " c a r r i e s w i t h
i t d u t i e s and r e s p o n s i b i l i t i e s " was adopted, w i t h the a d d i t i o n of the word
" s p e c i a l " before " d u t i e s and r e s p o n s i b i l i t i e s " .
128. There were two schools of thought on the question of how the l i m i t a t i o n s
or r e s t r i c t i o n s should be w r i t t e n . One school was of the opinion t h a t the
l i m i t a t i o n s c l a u s e should be a b r i e f statement of g e n e r a l l i m i t a t i o n s , the other
school maintained t h a t i t should be a f u l l catalogue of s p e c i f i c l i m i t a t i o n s .
Consequently, s e v e r a l t e x t s of a general c l a u s e were proposed w h i l e a t the same
time more than 30 s p e c i f i c l i m i t a t i o n s were suggested.
129. Cne proposal was t h a t the r i g h t to freedom of e x p r e s s i o n might be s u b j e c t
t o r e s t r i c t i o n s with regard t o :
(a) Matters which must remain s e c r e t i n the i n t e r e s t of n a t i o n a l s a f e t y ;
(b) E x p r e s s i o n s which i n v i t e persons to a l t e r by v i o l e n c e the system
of government;
(c) Expressions which d i r e c t l y I n c i t e persons t o commit c r i m i n a l a c t s ;
(d) Expressions which are obscene;
(e) Expressions i n j u r i o u s to the f a i r conduct of l e g a l proceedings;
(f) Infringements of l i t e r a r y or a r t i s t i c r i g h t s ;
(g) Expressions about other persons, n a t u r a l or l e g a l , which defame
t h e i r reputations or are otherwise i n j u r i o u s to them without
b e n e f i t i n g the p u b l i c ;
(h) The systematic d i f f u s i o n of d e l i b e r a t e l y f a l s e or d i s t o r t e d r e p o r t s
which undermine f r i e n d l y r e l a t i o n s between peoples and S t a t e s .
Other suggestions i n c l u d e d : d i s c l o s u r e of p r o f e s s i o n a l s e c r e t s ; d i s c l o s u r e
a r i s i n g out of m a r i t a l or p r o f e s s i o n a l r e l a t i o n s ; expressions about p u b l i c
a u t h o r i t i e s and high personages; communications w i t h f o r e i g n Governments;
blasphemous or treasonable statements; e t c .
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130. The advocates of a b r i e f c l a u s e argued t h a t a catalogue of s p e c i f i c

l i m i t a t i o n s might perhaps be i n c l u d e d i n a convention on freedom of i n f o r m a t i o n '
but would c e r t a i n l y be too long to be i n c l u d e d i n an a r t i c l e i n the covenant;
t h a t no catalogue could ever be s u f f i c i e n t l y exhaustive to cover a l l s i t u a t i o n s ,
i n view of the divergent p o l i t i c a l and l e g a l systems e x i s t i n g i n the world today;
and t h a t the only way t o d r a f t a l i m i t a t i o n s c l a u s e was t o f i n d a workable
common formula. Those i n favour of s p e c i f i c l i m i t a t i o n s i n s i s t e d t h a t a g e n e r a l
formula was s u s c e p t i b l e of a r b i t r a r y i n t e r p r e t a t i o n and a p p l i c a t i o n ; t h a t i f the
covenant were to be a s a t i s f a c t o r y l e g a l instrument p e r m i s s i b l e r e s t r i c t i o n s on
freedom of e x p r e s s i o n should be s e t f o r t h i n p r e c i s e unequivocal language; and
t h a t a wider degree of freedom would be ensured where l i m i t a t i o n s were
enumerated c a r e f u l l y and i n d e t a i l .
131. I n the course of debate s e v e r a l t e x t s of a g e n e r a l c l a u s e were proposed,
to which s e v e r a l s e r i e s of amendments c o n t a i n i n g s p e c i f i c l i m i t a t i o n s were
submitted. A general c l a u s e was adopted which provided t h a t the e x e r c i s e of
the r i g h t t o freedom of e x p r e s s i o n "may be s u b j e c t t o c e r t a i n r e s t r i c t i o n s ,
"but these s h a l l be such only as are provided by law and are n e c e s s a r y , ( l ) f o r
r e s p e c t of the r i g h t s and r e p u t a t i o n s of o t h e r s , (2) f o r the p r o t e c t i o n of
n a t i o n a l s e c u r i t y , or of p u b l i c order, or of p u b l i c h e a l t h or morals". The
words " p e n a l t i e s " and " l i a b i l i t i p s " which were o r i g i n a l l y p l a c e d before the
word " r e s t r i c t i o n s " were d e l e t e d .
132. The debate on the " p u b l i c order" c l a u s e of t h i s a r t i c l e p a r a l l e l e d t h a t of
the preceding a r t i c l e . One p r o p o s a l was to r e p l a c e the " p r o t e c t i o n of p u b l i c
order" by the "prevention of p u b l i c d i s o r d e r " ; another p r o p o s a l was t o modify
" p u b l i c order" by " i n a democratic society". Neither was accepted. I t might
be noted t h a t during the debate the term " p u b l i c order" was i n t e r p r e t e d as
covering the r i g h t s of a S t a t e t o l i c e n s e media of information and to r e g u l a t e
50/
the importation of information m a t e r i a l .

_/ See A r t i c l e 2 of the d r a f t convention on freedom of information prepared by

the United Nations Conference on Freedom of Information (E/CONF.6/79) and
A r t i c l e 2 of the d r a f t convention on freedom of information prepared by the
General Assembly Committee on the D r a f t Convention on Freedom of Information
(/2/7).
O/ For g e n e r a l comments on such e x p r e s s i o n s as " p u b l i c order", " n a t i o n a l
s e c u r i t y " or " p u b l i c s a f e t y " and on the d e s i r a b i l i t y of adopting a uniform
l i m i t a t i o n s c l a u s e f o r a r t i c l e s 18, 19, 20 and 21, see paragraphs 112-114
of the annotation under a r t i c l e 18 above.
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133. I n a d d i t i o n t o the general c l a u s e c e r t a i n r e s t r i c t i o n s of a s p e c i f i c

c h a r a c t e r were considered. For i n s t a n c e , i t was proposed t h a t freedom of
e x p r e s s i o n should he s u b j e c t to such r e s t r i c t i o n s as were necessary 'for preventing
the d i s c l o s u r e of information r e c e i v e d i n confidence" and " f o r ensuring the f a i r
and proper conduct of j u d i c i a l proceedings". Although t h e r e was l i t t l e o b j e c t i o n
i n p r i n c i p l e to these p r o p o s a l s , they were not adopted because there was no
m a j o r i t y i n favour of l i s t i n g s p e c i f i c l i m i t a t i o n s .
134. I t was f u r t h e r proposed t h a t freedom of e x p r e s s i o n should not be " e x p l o i t e d
f o r war propaganda, f o r incitement to h a t r e d among peoples, f o r r a c i a l
51/
d i s c r i m i n a t i o n and f o r the dissemination of slanderous rumours".' Again i t was
proposed t h a t freedom of e x p r e s s i o n should be s u b j e c t t o such r e s t r i c t i o n s as were
n e c e s s a r y " f o r the maintenance of peace and good r e l a t i o n s among S t a t e s " . These
and other s i m i l a r proposals were r e j e c t e d on the grounds t h a t they were not
s u s c e p t i b l e of p r e c i s e i n t e r p r e t a t i o n and t h a t , furthermore, they might j u s t i f y
the. establishment of a system of c e n s o r s h i p .
135* The question was r a i s e d whether freedom t o seek and freedom to r e c e i v e
information should be s u b j e c t t o the same r e s t r i c t i o n s as freedom t o impart
information, and whether they should be s u b j e c t to any r e s t r i c t i o n s a t a l l .
On t h i s p o i p t , however, no d e f i n i t e understanding appeared t o have been
established.
52/
The question of censorship '
136. Proposals were made t h a t " p r i o r censorship of the p r e s s should be e x p l i c i t l y
banned" and t h a t "previous censorship of w r i t t e n and p r i n t e d matter, the r a d i o
and news r e e l s should not exist".'''' Ko such proposals were adopted, f o r i t was

51/ An amendment was submitted during the f i r s t reading of the d r a f t covenants a t

the n i n t h s e s s i o n of the General Assembly proposing the d e l e t i o n of a r t i c l e 26
on p r o h i b i t i o n of advocacy of n a t i o n a l , r a c i a l or r e l i g i o u s h o s t i l i t y and the
i n s e r t i o n i n ' t h i s a r t i c l e of a p r o v i s i o n on the question (GA ( I X ) , a.i.58,
A/C.3/L.413).
52/ E/CN.ySR.320; //82/,2; /, Annex B, P a r t I I ; A/C.3/SR.4l6.
53/ A t t e n t i o n i s drawn t o A r t i c l e "VII of the d r a f t convention on the I n t e r n a t i o n a l
t r a n s m i s s i o n of news and the r i g h t of c o r r e c t i o n as approved by
GA r e s 277 ( I I I ) . T h i s a r t i c l e , which was based on A r t i c l e k of the d r a f t
convention on the gathering and I n t e r n a t i o n a l t r a n s m i s s i o n of news, prepared
by the United Nations Conference,dealt w i t h the question of censorship i n
peacetime.
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thought t h a t paragraph 2 of the a r t i c l e already guaranteed the r i g h t to seek,

r e c e i v e and impart information, r e g a r d l e s s of f r o n t i e r s , through a l l media o f
communication, and t h a t the r e s t r i c t i o n s i n paragraph 3 were not t o be understood
as a u t h o r i z i n g censorship. There was a l l the d i f f e r e n c e i n the world, i t was
s a i d , between a system of censorship and a reminder to the j o u r n a l i s t of h i s d u t i e s
and r e s p o n s i b i l i t i e s and of the l i m i t a t i o n s which might be placed upon him i n the
e x e r c i s e of the r i g h t to freedom of e x p r e s s i o n .

54/
Obstacles to the f r e e flow of information '
137- There were two proposals r e l a t i n g t o economic, f i n a n c i a l and other aspects
of the problem of freedom of information. One proposal was t h a t "measures s h a l l
be taken t o promote the freedom of information through the e l i m i n a t i o n of
p o l i t i c a l , economic, t e c h n i c a l and other o b s t a c l e s which are l i k e l y to hinder the
f r e e flow of information". Another proposal was t h a t "nothing i n t h i s a r t i c l e
s h a l l a f f e c t the r i g h t of any S t a t e party t o t h i s covenant to take measures which
i t deems necessary i n order t o b r i n g i t s balance o f payments into e q u i l i b r i u m " .
These proposals were r e j e c t e d mainly on the grounds t h a t they d e a l t w i t h temporary
s i t u a t i o n s or t e c h n i c a l problems, r a t h e r than the r i g h t to freedom of expression
i t s e l f , and should not, t h e r e f o r e , be included i n a u n i v e r s a l instrument of a
55/

lasting character.'

56/
Other p r o p o s a l s . '
138. There were other proposals r e l a t i n g t o freedom of information, which were not
adopted. One proposal was that."nothing i n t h i s a r t i c l e s h a l l prevent a S t a t e
157 E/CN".ySR.l63, 165; E / C N A / 8 0 , 432, 438/Rev.l, hkO; E/Conf .6/79, Annex B.
55/ The question of balance of payment and the question of r e s t r i c t i v e or
monopolistic p r a c t i c e s i n r e s t r a i n t of the f r e e flow of information were d e a l t
w i t h r e s p e c t i v e l y i n A r t i c l e k o f the d r a f t convention on freedom o f
information as prepared by the United Nations Conference ( E / C o n f . 6 / 7 9 ) , and
i n a r t i c l e s 6 and 7 of the d r a f t convention on freedom of information as
prepared by the General Assembly Committee (/2/7).
6/ E/CN.VSR.165; E / C N A / e O ; E/Conf .6/79, Annex B.

\
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from e s t a b l i s h i n g on reasonable terms a r i g h t of r e p l y or a s i m i l a r c o r r e c t i v e

remedy". Another proposal was t h a t "nothing i n t h i s a r t i c l e s h a l l be deemed to
a f f e c t the r i g h t of any S t a t e to c o n t r o l the entry of persons i n t o i t s t e r r i t o r y
or the p e r i o d of r e s i d e n c e t h e r e i n " . I t was g e n e r a l l y thought t h a t such
p r o v i s i o n s might be included i n s p e c i a l conventions i n the f i e l d of freedom of
57/
information.-'

57/ The r i g h t of r e p l y was the s u b j e c t of the Convention on the I n t e r n a t i o n a l

Right of C o r r e c t i o n adopted by the General Assembly i n r e s o l u t i o n 63O ( V I l )
and was a l s o d e a l t w i t h i n paragraph 2 of a r t i c l e 2 of the d r a f t convention
on freedom of information prepared by the United Nations Conference
(E/Conf.6/79) and i n a r t i c l e h of the d r a f t convention on freedom of
information prepared by the General Assembly Committee (/2/7). The
question of the entry of any person into a t e r r i t o r y and of h i s r e s i d e n c e
t h e r e i n was d e a l t w i t h i n a r t i c l e 6 of the d r a f t convention on freedom of
information, as prepared by the United Nations Conference (E/Conf.6/79)
and i n a r t i c l e 9 of the d r a f t convention on freedom of information as
prepared by the General Assembly Committee (/2/7).
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DOCUMENTATION
Article
Organ and s e s s i o n Records of d i s c u s s i o n Other documents number

CHR, DC ( I ) E/CNA/AC.I/SR.IO E / C N A / 2 1 , annex G,

a r t .9
UN Conf. on E/Conf.6/79, annex
Freedom o f I n f .

CHR ( I I ) E/CNA/SR.37; E/CN /37,56; E S C ( V I ) , 3

E/CNA/AC.3/SR.6 suppl.1, annex B , 16
p a r t I I , art.17

Sub-Comm. on E/CNA/80 17
Freedom of I n f .
and o f the Press
(II)

CHR, DC (II) E/CNA/ACI/SR.26 E/CN A / A C . I / 1 9 ; 17

E/CNA/95, annex

CHR ( I I I ) E/CNA/82/Rev.l, 17
Add.2,k,8,12; ESC ( V I l ) ,
suppl.2, annex

CHR (V) E/CNA/SR.120 E / C N A / 2 2 0 , 272; 17

ESC ( I X ) , suppl. 10,
annexes I and I I .

CHR ( V I ) E / C N A / S R . 162-67, E/CNA/353/Add.1-3, 17

17, 171, 200 7,8,10; 360, 365, k2k,
432, 433/Rev.2, 434,
438/Rev.l, k k O ;
ESC ( X I ) , suppl. 5,
annexes I and I I , a r t . l U

ESC ( X I ) E/C.7/SR.1U7 E/L.68 ik

GA (V) 3rd Com. 289th- A/C.3/L.96 Ik

300th and 305th
mtgs.

GA Comm. on
Freedom of I n f . A/ACA2/7
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BCCOETATION (cont'd)
4
.,..,
' Article
C r j a n p.nd s e s s i o n Records o f d i s c u s s i o n Other documents number

CHR ( V I I ) E/CN. V515/Add , 12, 14

Ik,16; 52k, 528, 532;
ESC ( X I I l ) , s u p p l . 9 ,
annex I

ESC (XIII) _J!/2057/Add.3

GA ( V I ) 3 r d Com. 4 l 5 t h and
4 l 6 t h mtgs.

CHR (VIII) //SR. 32-322 E/CN.4/528/Add.l; 14

E/CN.4/L.125, lkk/Rev.1,
156/Rev.l_ 192,193; ESC (XIV)
s u p p l . k , paras.238-247,
annex I.B, art.l

CHR ( I X ) E/CN.4/674; ESC ( X V l ) , 16

suppl.8, annex I . B ,
art.19

CHR (X) ESC ( X V I I I ) , suppl.7, 19

annex I.B
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ARTICLE 20

Right of p e a c e f u l assembly

The r i g h t of p e a c e f u l assembly s h a l l be recognized. Wo

r e s t r i c t i o n s may be placed on the e x e r c i s e of t h i s r i g h t other
than those imposed i n conformity w i t h the law and which a r e
necessary i n a democratic s o c i e t y i n the i n t e r e s t s of n a t i o n a l
s e c u r i t y or p u b l i c s a f e t y , p u b l i c order, the p r o t e c t i o n of
p u b l i c h e a l t h or morals or the p r o t e c t i o n of the r i g h t s and
freedoms of o t h e r s .

Formulation o f the r i g h t

139* There was general agreement on the d e s i r a b i l i t y o f i n c l u d i n g an a r t i c l e on

the r i g h t o f p e a c e f u l assembly i n the d r a f t covenant on c i v i l and p o l i t i c a l r i g h t s
but there was some d i s c u s s i o n on the elements which c o n s t i t u t e d t h a t r i g h t . ^
On the one hand, a proposal was made t h a t the r i g h t should include "freedom t o
hold assemblies, meetings, s t r e e t processions and demonstrations". On the other
hand, the view was expressed t h a t the r i g h t of p e a c e f u l assembly might not
n e c e s s a r i l y include freedom to hold pageants or processions i n s t r e e t s or p u b l i c
places. The m a j o r i t y was i n favour of a general formulation. Although a
suggestion was made t h a t freedom of p e a c e f u l assembly should be protected only
against "governmental i n t e r f e r e n c e " , i t was g e n e r a l l y understood t h a t the
i n d i v i d u a l should be protected a g a i n s t a l l kinds of i n t e r f e r e n c e i n the e x e r c i s e
of t h i s r i g h t .
lkO. Various opinions were expressed as to how the r i g h t of p e a c e f u l assembly
59/
should be enunciated i n the a r t i c l e . ' A proposal t h a t t h i s r i g h t " s h a l l be
guaranteed by law" was r e j e c t e d , on the ground t h a t the general p r o v i s i o n s of
a r t i c l e 2 o f the d r a f t covenant on c i v i l and p o l i t i c a l r i g h t s l a i d down the
necessary guarantees f o r a l l the r i g h t s recognized i n t h i s instrument. One

58/ E / C N A / S R . 1 2 1 , 325- //82, 353/Add.l; E/CN.U/L.126.

59/ E/CN.ySR.120, I 6 9 , 200 , 325; E/CNA/353/Add.8; //.12; ESC ( I X ) ,
suppl. 10, annex I , a r t . l 8 ; ESC ( X I ) , suppl. 5, annex I , a r t . 1 5 .
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opinion was t h a t the r i g h t should he enunciated as i n A r t i c l e 20 of the U n i v e r s a l

D e c l a r a t i o n and i n v a r i o u s other a r t i c l e s of the d r a f t covenant: "Everyone s h a l l
have the r i g h t to freedom of p e a c e f u l assembly". Such a formulation, i t was
thought, would make i t c l e a r t h a t the r i g h t belongs t o every person. Another
opinion was t h a t the r i g h t should be "recognized" as a fundamental human r i g h t ,
r a t h e r than granted under the covenant. The formulation, "The r i g h t of p e a c e f u l
assembly s h a l l be recognized", was f i n a l l y accepted.

Limitations c l a u s e ^

ihl. I t was g e n e r a l l y agreed t h a t the e x e r c i s e of t h i s r i g h t might be s u b j e c t

to r e s t r i c t i o n s . I n the second sentence, the word "may" was used, i n s t e a d of
" s h a l l " , i n order t o make i t c l e a r t h a t S t a t e s p a r t i e s would i n no way be obliged
to impose r e s t r i c t i o n s . E a r l i e r d r a f t s provided t h a t a l l r e s t r i c t i o n s of freedom
of p e a c e f u l assembly should be " p r e s c r i b e d by law". The words "imposed i n
conformity w i t h the law" were subsequently p r e f e r r e d as a l l o w i n g f o r l e g i t i m a t e
administrative action. The o b j e c t i o n was r a i s e d , however, t h a t such a formula
was i n c o n s i s t e n t w i t h the wording used I n other a r t i c l e s o f the d r a f t covenant
on c i v i l and p o l i t i c a l r i g h t s .

lh2. Various opinions were expressed on the nature and scope of the necessary
limitations. Some thought t h a t only one fundamental r e s t r i c t i o n should be
included i n the a r t i c l e , namely: " a l l the a c t i v i t i e s o f s o c i e t i e s , unions and
other o r g a n i z a t i o n s of a f a s c i s t or anti-democratic nature s h a l l be forbidden
by law, s u b j e c t to p e n a l t y " . The supporters of t h i s p r o p o s a l emphasized t h a t the
r i g h t of p e a c e f u l assembly should be recognized " i n the i n t e r e s t o f democracy".
I t was argued t h a t , should the r i g h t of p e a c e f u l assembly be e x e r c i s e d by a n t i
democratic groups, a l l the r i g h t s recognized i n the covenants might be j e o p a r d i z e d .
On the other hand, i t was s a i d t h a t , as a matter of p r i n c i p l e , t o deny c e r t a i n
groups freedom of assembly merely on account of t h e i r opinions would be contrary
to the p r i n c i p l e s o f freedom o f opinion and e x p r e s s i o n recognized i n the

l6
60/ E/CN.VAC.1/SR.26; //.3/SR.6; E/CN / S R . 120, 9 > 325; //82,
272/Corr.l, E / C N / 5 0 7 , 308; E/CN.U/L.126, 1U5, 201.
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U n i v e r s a l D e c l a r a t i o n and. the d r a f t covenant on c i v i l and p o l i t i c a l r i g h t s .

I t was a l s o observed t h a t terms such as " f a s c i s t " or "anti-democratic" were not
c l e a r l y defined and could lead to abuse. I f the a c t i v i t i e s of any group became
a p u b l i c danger the laws f o r the p r o t e c t i o n of " p u b l i c order", " n a t i o n a l
s e c u r i t y " or "the r i g h t s and freedoms of o t h e r s " could be a p p l i e d .
143. The proposed grounds f o r r e s t r i c t i o n s - " i n the i n t e r e s t of n a t i o n a l s e c u r i t y
or p u b l i c s a f e t y , p u b l i c order, the p r o t e c t i o n of p u b l i c h e a l t h or morals or the
p r o t e c t i o n of the r i g h t s and freedoms o f o t h e r s " - gave r i s e to c r i t i c i s m s s i m i l a r
to those which were expressed during the debates concerning a r t i c l e s 18 and 19
of the d r a f t covenant Proposals were made to r e p l a c e the term "public order"
by "prevention of d i s o r d e r " ; t o include i n the l i s t o f l i m i t a t i o n s an a d d i t i o n a l
ground " i n the general i n t e r e s t " . Both were r e j e c t e d . There was a f e e l i n g that
the use of vague concepts such as " p u b l i c order" and " n a t i o n a l s e c u r i t y " might
give r i s e t o abuse, u n l e s s those concepts were properly qualified. The words
"reasonable and" were proposed f o r i n c l u s i o n before the word "necessary", but
were not adopted. Another proposal was t h a t a l l the l i m i t a t i o n s l i s t e d i n the
a r t i c l e be q u a l i f i e d by the words "necessary i n a democratic s o c i e t y " . The
supporters of t h i s proposal expressed the opinion t h a t freedom of assembly could
not be e f f e c t i v e l y protected i f the S t a t e s p a r t i e s d i d not apply the l i m i t a t i o n s
clause according to the p r i n c i p l e s recognized i n a democratic s o c i e t y . To the
o b j e c t i o n t h a t the word "democracy" might be i n t e r p r e t e d d i f f e r e n t l y i n various
c o u n t r i e s , one answer was t h a t a democratic s o c i e t y might be d i s t i n g u i s h e d by i t s
r e s p e c t f o r the p r i n c i p l e s of the Charter, the U n i v e r s a l D e c l a r a t i o n and the
covenants on human r i g h t s . The words "necessary i n a democratic s o c i e t y " were
f i n a l l y adopted.^

61/ See paras. 112-114 of the annotation under a r t i c l e 18, and para. 132 of the
annotation under a r t i c l e 19.
62/ F o r general comments on such expressions as " n a t i o n a l s e c u r i t y " , " P u b l i c
order", and on the d e s i r a b i l i t y of adopting a uniform l i m i t a t i o n s clause
f o r a r t i c l e s 18, 19, 20 and 21, see paragraphs 112-114 of the annotation
under a r t i c l e 18 above.
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DOCUMENTATION
Article
Organ and S e s s i o n Records of d i s c u s s i o n Other documents Number

DC ( I ) E/CNA/AC.I/SR.3 E/CN.4/21, annex A , a r t . l 9 ,

Annex B, art.15, annex C,
art.23, annex G, a r t . 10

CHR (II) E/CN.4/AC3/SR.6; E/CN.4/37, 6, a r t . 17; 10

E/CN.4/SR-39 E S C ( V I ) , suppl.1,
annex B, art.18

DC (II) E/CN.4/AC.1/SR.26,31 E/CN.4/AC.1/19, 34; 18

E/CN.4/82 and Add.4,
8, 12; E/CN.4/95,
annex B, a r t . l 8

CHR (III) E/CN.4/89 18

CHR (v) E/CN.4/SR.120, 121 E/CN.4/17O and

Adds.l and 4; E/CN.4/l88, 18
222, 272/Corr.l, E/CN.4/306,
307, 308; E S C ( I X ) ,
suppl.10, annex 1, art.18,
annex I I , art.18

CHR ( V I ) E/CN.4/SR.l69, 200 E/CN.4/353/Add.l, 3, 8, 18

10; E/CN.4/NGO/7; E S C ( X I ) .
suppl.5, annex I , art.15,
annex I I , art.15

ESC (XI) E/AC.7/SR.I47 15

GA (V) 3rd com., 288th, 289th, A/C.3/L.77 and R e v . l , 15

290th, 291st mtgs. A/C.3/L.96

CHR ( V I I ) E/CN.4/515/Add.ll, 13, 15; 15

E/CN.4/528, paras.179-198
and 208; E/CN.4/563 and
R e v . l ; E/CN.4/NG0.21;
E S C ( X I I I ) , suppl.9,
annex I I I , art.15

CHR (VIII) E/CN.VSR.325 E/CN.4/528/Add.l, 15

paras.102,114-115;
E/CN.4/L.126, 145, 201;
E/CN.4/NGO/39; E S C ( X I V ) ,
suppl.4, paras.248-250,
annex I , art.17
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DOCUMENTATION (cont'd)
Article
Organ and S e s s i o n Records o f d i s c u s s i o n Other documents Number

CHR ( I X ) E/CN.V674 para.Vf; 17

ESC ( X V I ) , suppl.8,
annex I B, art.20

CHR (X) E/CN.ty69tyAdd.6j 20

E/CNA/702, s e c t . I I ;
ESC ( X V I I I ) , suppl.7,
annex I B, art.20

GA ( I X ) 3rd com., 569th mtg. 20

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ARTICLE 21

Right of Association

1. Everyone s h a l l have the r i g h t to freedom of a s s o c i a t i o n w i t h

o t h e r s , i n c l u d i n g the r i g h t to form and j o i n trade unions f o r
the p r o t e c t i o n of h i s i n t e r e s t s .

2. No r e s t r i c t i o n s may he placed on the e x e r c i s e of t h i s r i g h t

other than those p r e s c r i b e d by law and which are necessary i n a
democratic s o c i e t y i n the i n t e r e s t s of n a t i o n a l s e c u r i t y or
p u b l i c s a f e t y , p u b l i c order, the p r o t e c t i o n of p u b l i c h e a l t h or
morals or the p r o t e c t i o n of the r i g h t s and freedoms of o t h e r s .
T h i s a r t i c l e s h a l l not prevent the imposition of l a w f u l
, r e s t r i c t i o n s on the e x e r c i s e of t h i s r i g h t by members of the
armed f o r c e s or of the p o l i c e .

3- Nothing i n t h i s a r t i c l e s h a l l authorize S t a t e s P a r t i e s to
the I n t e r n a t i o n a l Labour Convention of 1948 on Freedom of
A s s o c i a t i o n and P r o t e c t i o n of the Right to Organize, to take
l e g i s l a t i v e measures which would p r e j u d i c e , or to apply the law
i n such a manner as to p r e j u d i c e , the guarantees provided f o r
i n t h a t Convention.

144. I t was agreed t h a t the r i g h t of a s s o c i a t i o n should be included i n the d r a f t

covenant on c i v i l and p o l i t i c a l r i g h t s . Although i t was recognized t h a t t h i s
r i g h t and the r i g h t of p e a c e f u l assembly were c l o s e l y r e l a t e d , a p r o p o s a l to
d e a l w i t h both of them i n a s i n g l e a r t i c l e was rejected. The m a j o r i t y opinion
63/
was t h a t there were s u b s t a n t i a l d i f f e r e n c e s j u s t i f y i n g separate treatment.'
64/
Formulation of the r i g h t '
145- I t was g e n e r a l l y agreed t h a t the r i g h t of a s s o c i a t i o n included the r i g h t to
form as w e l l as the r i g h t to j o i n a s s o c i a t i o n s . A p r o p o s a l to add a sentence,
"No one may be compelled to j o i n an a s s o c i a t i o n " , was not accepted. I t was

63/ E/CN.4/SR.121, 325; E/CNA/L-126; E S C ( X I I l ) , suppl.9, annex I I I , art.16.

64/ E/CN.4/AC.1/SR.26; E/CWA/SR-171, 172, 323, 326; E/CN.4/l64 and Add.l,
/ / 2 , 353/Add.l, 8; E/CN.4/L.126, l 4 6 , 202, 203; E/e.2/410.
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recognized t h a t t h i s sentence, taken from a r t i c l e 20 of the U n i v e r s a l Declaration,

s t r e s s e d an important aspect of freedom of a s s o c i a t i o n , hut the opinion was
expressed t h a t i t s a p p l i c a t i o n might not always he i n the i n t e r e s t o f trade
unions.
lk6. There was some debate on whether the r i g h t to form and to j o i n trade unions
should be s p e c i f i c a l l y mentioned i n the a r t i c l e . I t was r e c a l l e d t h a t trade union
r i g h t s were d e a l t w i t h i n a r t i c l e 8 of the d r a f t covenant on economic, s o c i a l and
cultural rights; should trade union r i g h t s a l s o be mentioned i n the d r a f t
covenant on c i v i l and p o l i t i c a l r i g h t s , the r i g h t to form and to j o i n trade unions
would he s u b j e c t to two d i f f e r e n t s e t s of l i m i t a t i o n s , i . e . , the general
l i m i t a t i o n s clause i n a r t i c l e k of the d r a f t covenant on economic, s o c i a l and
c u l t u r a l r i g h t s and the l i m i t a t i o n s clause contained i n paragraph 2 of t h i s
article.
On the other hand, i t was emphasized t h a t f a i l u r e to mention trade union
r i g h t s i n the d r a f t covenant on c i v i l and p o l i t i c a l r i g h t s could lead to an
erroneous i n t e r p r e t a t i o n t h a t these r i g h t s were not c i v i l r i g h t s as w e l l as
economic o r s o c i a l r i g h t s . I t was decided t h a t the r i g h t to form and to j o i n
trade unions should be mentioned i n the a r t i c l e .
1^7. With regard to the expression, "for the p r o t e c t i o n of h i s i n t e r e s t s " , one
view was t h a t such a c l a u s e , couched i n general terms, was b e t t e r than the formula
used i n a r t i c l e 8 of the d r a f t covenant on economic, s o c i a l and c u l t u r a l r i g h t s :
" f o r the p r o t e c t i o n of h i s economic and s o c i a l i n t e r e s t s " . I t was observed t h a t
trade union organizations must often struggle f o r the p r o t e c t i o n of the c i v i l
r i g h t s s w e l l as the economic and s o c i a l i n t e r e s t s of t h e i r members.
ikQ. As was the case during the debates concerning the r i g h t of p e a c e f u l assembly,
a proposal t h a t the r i g h t of a s s o c i a t i o n , i n c l u d i n g trade union r i g h t s , should be
protected only against "governmental i n t e r f e r e n c e " was r e j e c t e d .
1^9. There was some d i s c u s s i o n on the question whether the r i g h t o f a s s o c i a t i o n
should be "recognized", or whether the a r t i c l e should s p e c i f y that "everyone s h a l l
have the r i g h t to freedom of a s s o c i a t i o n " . The l a t t e r formulation was accepted.
A t t e n t i o n was drawn, i n t h i s connexion, to a discrepancy between the opening
sentences o f a r t i c l e s 20 and 21.
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/
Limitations clause

150. The general l i m i t a t i o n s on the r i g h t of association were the same as those

on the r i g h t o f peaceful assembly, excepting t h a t , w h i l e the words "imposed i n
conformity w i t h the law" had been included i n a r t i c l e 20, the words "prescribed by
66/
law" were used i n a r t i c l e 21.'
151. A proposal was made t h a t nothing i n the a r t i c l e should prevent the imposition
of l a w f u l r e s t r i c t i o n s on the exercise of the r i g h t of a s s o c i a t i o n by members of
the armed f o r c e s , of the p o l i c e , or o f the a d m i n i s t r a t i o n o f the State. Some
argued t h a t there was no ground f o r f u r t h e r r e s t r i c t i o n s t o the prejudice of such
persons, except perhaps w i t h respect t o the r i g h t t o s t r i k e . At any r a t e ,
general l i m i t a t i o n s i n the i n t e r e s t o f " n a t i o n a l s e c u r i t y " and "public order"
seemed t o a f f o r d s u f f i c i e n t safeguards t o States. On the other hand, i t was
observed t h a t the necessity of such a p r o v i s i o n was recognized i n the laws of many
States. The proposal was not intended t o deny the enjoyment and exercise of the
r i g h t o f association t o c e r t a i n persons, hut merely t o l i m i t t h e i r choice of
associations and p a r t i c u l a r l y the extent t o which they might engage i n trade union
activities. This a d d i t i o n a l l i m i t a t i o n s clause was adopted w i t h respect t o members
of the armed forces or of the p o l i c e , but not w i t h respect t o other members o f
the a d m i n i s t r a t i o n of the State.
I n t e r n a t i o n a l Labour Convention on Freedom o f Association and P r o t e c t i o n of the
Right t o Organize 67/

152. I t was proposed t h a t "Nothing i n t h i s a r t i c l e s h a l l authorize States P a r t i e s

t o the I n t e r n a t i o n a l Labour Convention of 1948 on Freedom of Association and
P r o t e c t i o n o f the Right to Organize, t o take l e g i s l a t i v e measures which

57 7 C N . V A C 1 / S R . 3 1 ; E/CN.4/SR.39, 1 2 1
> -L? * 1
325, 326; E/CN.4/l70, 227,
353/Add.2, 3, 8, 10; E/CN.4/L.126, 146, 202.
66/ With regard t o the suggested p r o h i b i t i o n of " s o c i e t i e s , unions or other
organizations of a f a s c i s t or anti-democratic nature", the meaning of the
word "may" and of such terms as " p u b l i c order", " n a t i o n a l s e c u r i t y " ,
"reasonable", "necessary i n a democratic s o c i e t y " , reference i s made t o
paragraphs 142-143 of the annotation under a r t i c l e 20 above. General
comments on the terms "public order", " n a t i o n a l s e c u r i t y " , e t c . and the
d e s i r a b i l i t y of a uniform l i m i t a t i o n s clause f o r a r t i c l e s 18, 19, 20 and 21
are summarized i n paragraphs 112-114 of the annotation under a r t i c l e 18 above.
67/ E/CN.4/SR.121, 171; E/CN.4/23O, 453.
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would p r e j u d i c e , or t o apply the law i n such a manner as to p r e j u d i c e , the

guarantees provided f o r i n t h a t convention". According to one opinion, there
was no point i n adopting such a proposal, s i n c e w e l l e s t a b l i s h e d p r i n c i p l e s of
i n t e r n a t i o n a l law would prevent any c o n f l i c t a r i s i n g between the two t r e a t i e s .
When r a t i f y i n g the covenant, the S t a t e s p a r t i e s t o t h e 15A-8 convention would still
be bound by the o b l i g a t i o n s l a i d down i n t h a t convention. They would not be a t
l i b e r t y t o apply A r t i c l e 21 of the covenant i n such a manner as to p r e j u d i c e the
guarantees provided f o r i n the convention. The view was a l s o expressed that
cross-references t o s p e c i a l conventions were not appropriate I n a g e n e r a l l e g a l
instrument. I n support of the p r o p o s a l , i t was emphasized t h a t f a i l u r e t o make
the suggested c r o s s - r e f e r e n c e could be i n t e r p r e t e d as an i n d i c a t i o n t h a t the
United Nations overlooked o r underestimated the progress achieved i n safeguarding
trade union r i g h t s i n i n t e r n a t i o n a l law. The proposal was f i n a l l y adopted as
paragraph 3 of the a r t i c l e .
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DOCUMENTATION
Article
Organs and S e s s i o n s Records o f D i s c u s s i o n Other documents Number

DC ( I ) E/CNA/AC.I/SR.3 E/CN A/AC. l/lO ;

E / C N A / 2 1 , annex A,
a r t . 20, annex , a r t . l 6 ,
annex C, art.23, annex G,
art.11
CHR ( I I ) E/CN.U/AC.3/SR.6; E/CNA/23 and Add.l, 11
E/CNA/SR.39 E/CNA/31, 37, 45, 56,
art.18, ESC ( V I ) , s u p p l . I ,
annex , art.19

DC ( I I ) E / C N A / A C . I / S R . 2 6 , 31 E/CNA/AC.I/19, 19
E/CNA/82/Add.2,4,8,12;
E / C N A / 9 5 , annex B, art.19

CHR (III) E/CNA/89, 100 19

CHR (V) E/CNA/SR.121 E/CNA/156, 164 and Add.l; 19

E/CN A/170 and Add A ,
E/CNA/222, 227, 23O, 263,
296/Corr.l, ESC ( I X ) ,
suppl.10, annex I , art.19,
annex I I , art.19

CHR ( V I ) E / C N A / S R . 1 7 1 , 172 E/CNA/353/Add.l, 2, 3, 8, 19

10; E / C N A/453;
E/CNA/NGO.7; ESC ( X l ) ,
suppl.5, annex I , art.16,
annex I I , a r t . l 6

ESC ( X I ) E/AC.7/SR.1J-7, ikQ 16

GA (V) 3rd com., 288th, 289th, A/C.3/L.77 and R e v . l , 16

290th, 291st mtgs. A/C.3/L.96

CHR ( V I I ) E/CNA/515/Add.11, 13, 15; 16

E/CNA/528, p a r a s . 179-198,
208-213; E/CNA/563 and
R e v . l ; E/CNA/NGO/21;
ESC ( X I I I ) , suppl.9,
annex I I I , art.l

ESC ( X I I I ) E/2057/Add.2 16
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DOCUMENTATION (cont'd) Article

Organs and S e s s i o n s Records of D i s c u s s i o n Other documents Number

CHR ( V I I I ) E/CN.SR.325, 26 E/CN.y528/Add.l, 16

paras.102, l l 6 , 118;
E/CN.yL.126, 146, 202,
203; E/CN.4/NG0/39J
ESC ( X I V ) , s u p p l ,
paras.245-297, 251-257,
and annex 1, art.18

CHR ( I X ) E/CN.4/674, para.47, 18

ESC ( X V I ) , suppl.8,
annex I B , art.21

ESC (XVI) E/C.2/365 21

CHR (X) E/CN.4/694/Add.6; 21

E/CN.4/702, s e c t i o n I X ,
E/CN.4/702/Add.l, s e c t i o n XXV;
ESC ( X V I I I ) , suppl.7,
annex I B , art.21

ESC (XVIII) E/C.2/410 21

GA ( I X ) 3rd com., 565th, 21

568th, 575th mtgs.
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ARTICLE 22

Rights r e l a t i n g t o marriage

1. The family i s the n a t u r a l and fundamental group u n i t

of s o c i e t y and i s e n t i t l e d t o p r o t e c t i o n hy s o c i e t y and
the S t a t e .

2. The r i g h t of men and women of marriageable age t o

marry and t o found a f a m i l y s h a l l be recognized,.

3. Wo marriage s h a l l be entered i n t o without the f r e e

and f u l l consent of the intending spouses.

k. The l e g i s l a t i o n of the S t a t e s P a r t i e s t o t h i s
Covenant s h a l l be d i r e c t e d towards e q u a l i t y of r i g h t s
and r e s p o n s i b i l i t i e s f o r the spouses a s t o marriage,
during marriage and a t i t s d i s s o l u t i o n . I n the l a s t -
mentioned case the law s h a l l l a y down s p e c i a l measures
f o r the p r o t e c t i o n o f any c h i l d r e n of t h e marriage.

153. This a r t i c l e was included i n the d r a f t covenant a s a r e s u l t of the request

by the Commission on t h e Status of Women t h a t a r t i c l e 16 of the U n i v e r s a l
Declaration of Human Rights be incorporated i n t h e d r a f t c o v e n a n t . ^
15I+. Most o f t h e d i s c u s s i o n has been concerned w i t h paragraph h of the a r t i c l e
and, i n p a r t i c u l a r , w i t h the p r o v i s i o n concerning equal r i g h t s f o r spouses.
Paragraph 1 i s i d e n t i c a l w i t h para. 3 o f a r t i c l e l 6 of t h e D e c l a r a t i o n , while
paragraphs 2 and 3 a r e based, w i t h c e r t a i n amendments, on t h e f i r s t sentence
of paragraph 1 and on paragraph 2 of a r t i c l e l 6 r e s p e c t i v e l y .

68/ ESC ( X V I ) , suppl. 2, p a r a s . 29-30; E/CW.6/SR.128-130.

A r t i c l e l 6 of t h e D e c l a r a t i o n reads a s follows :
(1) Men and women of f u l l age, without any l i m i t a t i o n s due t o r a c e ,
n a t i o n a l i t y o r r e l i g i o n , have the r i g h t t o marry and t o found a family.
They are e n t i t l e d t o equal r i g h t s as t o marriage, during marriage
and a t i t s d i s s o l u t i o n .
(2) Marriage s h a l l be entered i n t o only w i t h the f r e e and f u l l
consent o f the intending spouses.
(3) The f a m i l y i s the n a t u r a l and fundamental group u n i t of s o c i e t y
and i s e n t i t l e d t o p r o t e c t i o n b y s o c i e t y and t h e S t a t e .
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Equal Rights f o r Spouses "as t o marriage, during marriage and a t i t s

r
r
d i s s o l u t i o n~b"9~7 '

155- Opinion was sharply divided over the i n c l u s i o n i n the d r a f t covenant on

c i v i l and p o l i t i c a l r i g h t s o f a p r o v i s i o n concerning equal r i g h t s for. men and
women r e l a t i n g t o marriage. I n e q u a l i t i e s between husband and wife were admitted.
I t was s a i d t h a t i n matters r e l a t i n g t o domicile, n a t i o n a l i t y , p a r e n t a l control
of c h i l d r e n , the r i g h t t o own property and the r i g h t to work, women were
frequently discriminated against.
156. I t was claimed, on one side, t h a t many i n e q u a l i t i e s arose from ancient
t r a d i t i o n s and r e l i g i o u s b e l i e f s and p r a c t i c e s which could not be changed
overnight. Moreover, governments had not always d i r e c t c o n t r o l over such
matters. A r t i c l e l 6 of the D e c l a r a t i o n l a i d down c e r t a i n standards which
peoples should s t r i v e t o a t t a i n . Any attempt t o put i n t o e f f e c t immediately
the p r i n c i p l e of equal r i g h t s f o r spouses would require r a d i c a l changes i n the
c i v i l laws and customs of most c o u n t r i e s . The question must a l s o be considered
i n r e l a t i o n t o the r e s p e c t i v e r e s p o n s i b i l i t i e s of the spouses. E q u a l i t y could
only be acquired over a p e r i o d of time. To include i n the d r a f t covenant on
c i v i l and p o l i t i c a l r i g h t s a p r o v i s i o n s t a t i n g t h a t men and women s h a l l have
equal r i g h t s r e l a t i n g t o marriage would be inappropriate, s i n c e i t was intended
t h a t S t a t e s should implement the p r o v i s i o n s of t h i s d r a f t covenant without
delay, and most S t a t e s would be unable t o give such an undertaking.
157 A t t e n t i o n was drawn t o a r t i c l e 10 of the d r a f t covenant on economic,
s o c i a l and c u l t u r a l r i g h t s on p r o t e c t i o n of marriage, motherhood and the family.
Some considered t h a t t h i s a r t i c l e went f a r enough f o r an instrument which
would be l e g a l l y binding and might be imcorporated i n the d r a f t covenant on
c i v i l and p o l i t i c a l r i g h t s . Another suggestion was t h a t , s i n c e implementation

69/ E/CN.ysR.380, 382-385, 4o9; E/CN.h/6Q6; E/CN.4/L.273; E/CN.6/SR.I64-I66,

l68j E/CN.6/234; E/CN.6/L.138; ESC ( X V I I l ) , suppl. 6, paras, 6l-62;
E/AC.7/SR.241-242, 277-278; GA ( I X ) , 3rd Com. 571st, 575th, 579th and
58lst mtgs.
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of the d r a f t covenant on economic, s o c i a l and c u l t u r a l r i g h t s was expected t o

he p r o g r e s s i v e , i t might he appropriate t o i n s e r t i n i t the t e x t of a r t i c l e l 6
of the D e c l a r a t i o n .
158. I t was pointed out, f u r t h e r , t h a t s i n c e a r t i c l e 3 proclaimed the equal r i g h t
of men and women t o the enjoyment of a l l c i v i l and p o l i t i c a l r i g h t s s e t f o r t h
i n the covenant, i t was unnecessary t o r e i t e r a t e the p r i n c i p l e i n the a r t i c l e
on marriage.
159. On the other side i t was argued t h a t the r i g h t t o marry and t o found a
f a m i l y was an elementary r i g h t of every person and should he included i n the
covenant on c i v i l and p o l i t i c a l r i g h t s . That was the l o g i c a l p l a c e f o r an
a r t i c l e on marriage. S i n c e i n e q u a l i t i e s between the r i g h t s of husband and w i f e
o b v i o u s l y e x i s t e d , the i n c l u s i o n of a p r o v i s i o n based on para. 1 of a r t i c l e 16
of the D e c l a r a t i o n was a l l the more j u s t i f i e d . E q u a l i t y o f r i g h t s f o r the
spouses should be put on the same l e g a l f o o t i n g as the other human r i g h t s
recognized i n the covenant. I t was not s u f f i c i e n t t o i n s e r t an a r t i c l e i n the
covenant on economic, s o c i a l and c u l t u r a l r i g h t s s i n c e the implementation of the
provisions of t h a t covenant would not be immediate, but p r o g r e s s i v e . States
should change t h e i r l e g i s l a t i o n , i f necessary, t o give equal r i g h t s t o men and
women r e l a t i n g t o marriage. I f they could not undertake such obligations
immediately they could make r e s e r v a t i o n s t o the a r t i c l e when r a t i f y i n g the
covenant.
160. I n an attempt t o f i n d a compromise i t was proposed t h a t the l e g i s l a t i o n of
S t a t e s p a r t i e s " s h a l l be d i r e c t e d towards e q u a l i t y of r i g h t s and r e s p o n s i b i l i t i e s
f o r the spouses a s t o marriage, during marriage and a t i t s d i s s o l u t i o n " . I t
was argued t h a t such a t e x t was the maximum which could be g e n e r a l l y accepted a t
the present time. I t was s a i d , however, t h a t t h i s wording was too f a r removed
from the terms of a r t i c l e 16 of the D e c l a r a t i o n , although i t might r e p r e s e n t a
step i n the r i g h t d i r e c t i o n . The t e x t was c r i t i c i z e d a l s o a s l a c k i n g the
c l a r i t y n e c e s s a r y f o r a l e g a l instrument.
161. The Commission on the Status of Women asked t h a t the substance of para. 1
70/
of a r t i c l e l6 of the D e c l a r a t i o n be s u b s t i t u t e d f o r the above t e x t , ' a n d the

70/ ESC ( X V I I I ) , suppl. 6, paras. 61-62.

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gconcmic and S o c i a l C o u n c i l , i n r e s o l u t i o n 547 G ( X V I I I ) , t r a n s m i t t e d t h i s

proposal t o the General Assembly t o be considered a t the same time as the d r a f t
c0 v e n a n t on c i v i l and p o l i t i c a l rights.^
3_62. I t may be noted t h a t i n a r t i c l e 49 which l a y s down a procedure f o r r e p o r t i n g
o n the p r o v i s i o n s o f t h e d r a f t covenant on c i v i l and p o l i t i c a l r i g h t s ,
a r t i c l e 22 i s s i n g l e d out as being d i f f e r e n t from t h e other a r t i c l e s i n that
72/
i t s implementation i s expected t o be p r o g r e s s i v e . '
73/
d i s s o l u t i o n of m a r r i a g e
163. There was c r i t i c i s m of the i n c l u s i o n i n t h i s a r t i c l e of any r e f e r e n c e t o
d i s s o l u t i o n of marriage. I t was pointed out however, t h a t t h i s r e f e r r e d t o
d i s s o l u t i o n of marriage by the death of one of the p a r t n e r s as w e l l as by .
divorce. I t was not intended t o imply t h a t d i v o r c e was favourably regarded a s
a means o f d i s s o l v i n g the marriage c o n t r a c t . I t was important t o ensure that,
i n c o u n t r i e s where d i v o r c e was recognized, both spouses should enjoy equal r i g h t s
i n a l l matters r e l a t i n g t h e r e t o .

74/
P r o t e c t i o n of c h i l d r e n of the m a r r i a g e '
l6k. Some considered t h a t the a r t i c l e should provide f o r the p r o t e c t i o n of
i l l e g i t i m a t e a s w e l l as l e g i t i m a t e c h i l d r e n . Others were of the view t h a t an
a r t i c l e on marriage should r e f e r only t o c h i l d r e n of the marriage; any
p r o v i s i o n on i l l e g i t i m a t e c h i l d r e n should be covered i n a separate a r t i c l e .

71/ During the f i r s t reading of t h e d r a f t covenants a t the n i n t h s e s s i o n of

the General Assembly two amendments were submitted, one of which was based
on the proposal by the Commission on the S t a t u s of Women ( G A ( I X ) , Annexes,
a
i . 58, A / C 3 / L . 4 I 4 , L.4l8 and Add.1).
If;/ See a r t i c l e 49, paragraph 2.
73/ E/CN.VSR.380, 383, 384.
IV E/cN.ysB. 382-384; E/CN.4/L.275; A/C.3/SB.581; A/C.3/L.414;
A/2808, para. 47.
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165. I t was pointed out t h a t the a r t i c l e provided s p e c i a l measures f o r the

p r o t e c t i o n of c h i l d r e n only i n the case of d i s s o l u t i o n of the marriage. Some
parents d i d not always f u l f i l t h e i r d u t i e s t o t h e i r c h i l d r e n during marriage.
75/

The scope of t h i s p r o v i s i o n should be e x t e n d e d .

The i n c l u s i o n of a non-discrimination clause!i/

166. Some emphasized the importance of i n c l u d i n g i n t h e a r t i c l e on marriage a
clause p r o h i b i t i n g any d i s c r i m i n a t i o n due t o "race, n a t i o n a l i t y or r e l i g i o n " as
i n a r t i c l e 16 of the D e c l a r a t i o n . Some considered t h a t the clause should be
extended; the i n c l u s i o n of a reference t o " s o c i a l o r i g i n o r wealth" was proposed;
another suggestion was t h a t the e n t i r e enumeration contained i n a r t i c l e 2 of the
d r a f t covenant should be repeated.
167. Others were of the view t h a t any enumeration was dangerous s i n c e important
elements might be omitted. I n view of t h e p r o v i s i o n s of a r t i c l e 2 which governed
a l l the a r t i c l e s i n the d r a f t covenant no s p e c i f i c p r o v i s i o n p r o h i b i t i n g
d i s c r i m i n a t i o n was needed.
77 /
1
"Marriageable a g e "
168. I t was s a i d t h a t the terms "marriageable age" or " f u l l age" used i n
a r t i c l e 16 of the D e c l a r a t i o n were i n t e r p r e t e d d i f f e r e n t l y i n various countries.
They could r e f e r t o the age of l e g a l m a j o r i t y or of p h y s i c a l maturity. I t was
agreed t h a t i t should be l e f t t o S t a t e s to determine the marriageable age.
78/
Consent of the intending spouses'
169. Emphasis was l a i d on the f a c t t h a t both p a r t n e r s to a marriage must give
t h e i r consent. I t was pointed out however, t h a t para. 2 of a r t i c l e l 6 of the
D e c l a r a t i o n might preclude the imposition of such requirements as p a r e n t a l consent
to marriage i n cases where persons were under age. T h i s was prevalent i n many
countries. Paragraph 3 was amended t o meet t h i s objection.

75/ An amendment to t h i s e f f e c t was submitted during the f i r s t reading of the

d r a f t covenants a t the n i n t h s e s s i o n of the General Assembly (GA ( I X ) ,
Annexes, a.i.58, A / C . 3 / L . 4 l 4 ) .
_/ E/CN.VSR.382-384; E/CN.VL.273, L.275.
77/ E/CN.4/SR.382-384; E/CN.4/L.273, L.275, L.276.
78/ E/CN.4/SR.383; E/CN.4/L.276.
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DOCUMENTATION

Organ and Records of Article

Session discussion Other documents number

CHR ( V I ) E/CN.4/353/Add.3.

CHR ( V I I ) E/CN.4/515/Add.2, 528, para.34;

E/CN.4/NGO.16, 17, 23-25, 29,
30, 33, 34

CHR ( V I I I ) E/CN.4/528/Add.l, paras.23-25,

E/CN.4/660, paras.13-14

CSW ( V I I ) E/CN.6/SR.128-130 E/CN.6/L.9I, L . 9 l / R e v . l ;

E/CN.6/NG0.10; ESC ( X V l ) ,
suppl.2, paras.29-30

CHR ( I X ) E/CN.ySR.380, E/CN.4/674, para.19, 686; 22

382-385, -09 E/CN.4/L.27-276, L.289J
E/CN.4/NG0.43, 51; ESC ( X V I ) ,
suppl.8, paras.78-86, and annex I I I ,
paras.39-55

ESC ( X V I ) 736th mtg.; E/AC.7/L.162; E/2486 22

E/AC7/SR.24I, 242,
244

CSW ( V I I I ) E/CN.6/SR.I64-I66, E/CN.6/234; E/CN.6/L.138; 22

168 E/CN.6/NG0.19; ESC ( X V I I l ) , suppl.6,
paras.6l-62

CHR ( X ) E/CN.4/702 ( I I I , IV, V I I , ( V I I I ) , I X , 22

X I I I , X V I I , X X I ) , 702/Add.2 (XXIX,
XXX), 702/Add.6 (XXXIV)

ESC ( X V I I I ) 805th mtg.; E/AC.7/L.218 22

E/AC.7/SR.277-278

GA ( I X ) 3rd Com. 567th, Annexes, a.i.58, A/2808, A / C 3 / L . 4 I 4 , 22

571st, 575th, 579th 4l8 and Add.l
and 58lst mtgs.
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ARTICLE 23

Political Rights

Every c i t i z e n s h a l l have the r i g h t and the opportunity,

without any of the d i s t i n c t i o n s mentioned i n a r t i c l e 2 of
thin uoverara. ar.d without unreasonable r e s t r i c t i o n s :

( a ) To take p a r t the conduct of p u b l i c a f f a i r s ,

d i r e c t l y c r through f r e e l y chosen r e p r e s e n t a t i v e s ]

(b) To vote and t o be e l e c t e d a t genuine p e r i o d i c

e l e c t i o n s which s h a l l be by u n i v e r s a l and equal suffrage
and s h a l l be held by secret, b a l l o t , guaranteed the f r e e
expression of the w i l l of the e l e c t o r s ;

( c ) Of a c c e s s , on general terms of e q u a l i t y , t o
p u b l i c s e r v i c e i n h i s country.

Formulation of p o l i t i c a l r i g h t s

170. The m a j o r i t y agreed t h a t the d r a f t covenant should include an a r t i c l e on

certain p o l i t i c a l rights. There was some d i s c u s s i o n however on the manner i n
which the p r i n c i p l e s enunciated i n A r t i c l e 21 of the U n i v e r s a l D e c l a r a t i o n
should be t r a n s l a t e d i n t o l e g a l o b l i g a t i o n s i n the covenant.
171. Two formulae were proposed: "Every c i t i z e n ... s h a l l be guaranteed by the
State the r i g h t and the opportunity ...", and "Every c i t i z e n s h a l l have the r i g h t
79 /
and the opportunity . . . . " , ' t h e former emphasizing the o b l i g a t i o n s of the S t a t e ,
the l a t t e r the r i g h t s of the c i t i z e n . The l a t t e r wording was adopted.
1T2. Paragraph ( a ) of the a r t i = l e * / t a t e s , I n general t . ,
S t h a t every c i t i . e n
should have the r i g h t t o take p a r t i n the conduct of p u b l i c a f f a i r s . A more
s p e c i f i c formula, "to take p a r t i n t h e government of the S t a t e " , was not r e t a i n e d .
The r i g h t t o take p a r t i n the conduct of p u b l i c a f f a i r s should be e x e r c i s e d
" e i t h e r d i r e c t l y or through f r e e l y chosen r e p r e s e n t a t i v e s ". A proposal was made
t h a t d i r e c t suffrage should De the general r u l e , but the m a j o r i t y thought t h a t
both d i r e c t suffrage and i n d i r e c t suffrage were a d m i s s i b l e .

79/ E/CW.VSR.364, 367; E/OT.4/L.221, 224.

80/ E/CW.4/SR.365; E/CN.4/L.221, 224/Rev.l; GA ( V I I l ) , 3rd Com., 506th mtg.
 A/2929
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173. Paragraph ( h ) , concerning the r i g h t t o vote and t o he e l e c t e d , was an

a p p l i c a t i o n of the general r u l e l a i d down i n paragraph ( a ) . A more s p e c i f i c
proposal t h a t "every c i t i z e n s h a l l have the r i g h t t o vote and t o be e l e c t e d t o
a l l organs of a u t h o r i t y " was r e j e c t e d , on the grounds t h a t i n most c o u n t r i e s not
0-, /
a l l organs of a u t h o r i t y were e l e c t i v e . '
174. The v a r i o u s requirements of the a r t i c l e t h a t e l e c t i o n s must be "genuine",
" p e r i o d i c " , "by u n i v e r s a l and equal s u f f r a g e " and "by s e c r e t b a l l o t " d i d not
give r i s e t o much d i s c u s s i o n , except f o r the words " u n i v e r s a l and equal
82/
suffrage". The opinion was expressed t h a t the word " u n i v e r s a l " was redundant
i n the l i g h t of the i n t r o d u c t o r y c l a u s e , "Every c i t i z e n s h a l l have the r i g h t " ;
so was the word "equal", i n view of the reference t o t h e non-discrimination
clause of a r t i c l e 2. The m a j o r i t y , however, considered
;
t h a t the p r i n c i p l e of
" u n i v e r s a l and equal s u f f r a g e " was a most fundamental one, and decided t o include
i t i n the a r t i c l e . This p r o v i s i o n , i t was thought, would leave S t a t e s p a r t i e s t o
the covenant f r e e t o regulate t h e i r own e l e c t o r a l systems, provided each vole
c a r r i e d equal weight.
175 The p r o v i s i o n s of paragraph ( c ) on the r i g h t of a c c e s s t o p u b l i c s e r v i c e ,
on general terms of e q u a l i t y did not give r i s e to much debate save f o r the
question of the q u a l i f i c a t i o n s required.
83/
Non-discrimination c l a u s e '
176. A proposal was made t h a t every c i t i z e n should have p o l i t i c a l r i g h t s
" i r r e s p e c t i v e of race, colour, n a t i o n a l o r i g i n , s o c i a l p o s i t i o n , property s t a t u s ,
s o c i a l o r i g i n , language, r e l i g i o n or sex". The view was expressed t h a t
" p o l i t i c a l or one"" opinions" should be added t o t h i s enumeration. The words
"natiai. rx;i,.o: a l s o gave r i s e to some d i s c u s s i o n ; i t wa"s observed t h a t i n

81/ - /^.36);-;
;
E/CN.VL.221, 256.
82/ E/ON.VSiR.365, 367; E/CN.VL.221, 22h/BevA, 257, 258; GA(Vl), 3rd Com.,
369th mtfj.
83/ E/CN.VS3k.364, 365, 66; E/CN.k/L.221, 224 and Rev.k; /.255
and R e v . l , E/CN.4/L.258; GA ( I X ) , 3rd Com., 569th mtg.
/2929
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Page 174

various c o u n t r i e s a person who had been n a t u r a l i z e d was r e q u i r e d to wait a

c e r t a i n p e r i o d before e x e r c i s i n g p o l i t i c a l r i g h t s . I t was g e n e r a l l y thought
t h a t the non-discriraination c l a u s e contained i n paragraph 1 of a r t i c l e 2 of
the d r a f t covenant on c i v i l and p o l i t i c a l r i g h t s was a p p l i c a b l e to a l l a r t i c l e s
i n t h i s instrument and that unnecessary r e p e t i t i o n s should be avoided i n l e g a l
texts. The f o l l o w i n g c l a u s e was f i n a l l y adopted: "without any of the
d i s t i n c t i o n s mentioned i n a r t i c l e 2 of t h i s c o v e n a n t . " ^ /

Limitations clause^-/

177 A proposal was made t h a t "property, educational or other q u a l i f i c a t i o n s "

which r e s t r i c t e d e l e c t o r a l r i g h t s should be abolished. While i t was considered
necessary to p r o h i b i t r e s t r i c t i o n s which amounted to d i s c r i m i n a t i o n , i t was
observed t h a t i n most c o u n t r i e s the r i g h t to vote was denied to c e r t a i n
c a t e g o r i e s of persons, such as minors and l u n a t i c s , and t h a t the r i g h t to be
e l e c t e d to p u b l i c o f f i c e and the r i g h t of access to p u b l i c s e r v i c e were
g e n e r a l l y subjected to c e r t a i n q u a l i f i c a t i o n s . The c l a u s e "without unreasonable
r e s t r i c t i o n s " was adopted to q u a l i f y the e x e r c i s e of a l l the r i g h t s defined i n the
article. ^ /

84/ Amendments to the non-discrimination and l i m i t a t i o n s c l a u s e s wsre submitted

during the f i r s t reading of the d r a f t covenants a t the n i n t h s e s s i o n of the
General Assembly (GA ( I X ) a.i.58, A/C.3/L.413).

85/ E/CN.ySR.363, 65, 367; E/CN.V82/Add.l2, E/CN.4/L.221, 22ty]5ev.2, 3> ^

ESC ( X I I I ) , 524th mtg; GA ( V I ) , 3rd ., 366th mtg; GA (VIEf),
3rd Com., 506th mtg.
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Fage 175

DOCUMENTATION
Organ and Records of Article
session discussion Other documents number
EC ( I ) E/CN.4/AC.I/SR.4 E/CN.4/21, annex A, a r t . 30 and
31, annex C, a r t . 26, 27 and 28
(II) E/CN. VSR. 40 E/CN.4/35; E/CN.4/57, a r t . 28
DC ( I I ) -
E/CN.4/AC.1/21, a r t . 21 and 22
E/CN.4/82 and Add.12

CHR ( I I I ) E/CN.4/89

CHR (V) /CN.4/SR.133 E/CN.4/218

CHR (VI) E/CN.4/353/Add.2, 6, E/CN.4/395

E/CN.4/NG0/4

ESC (XI) E/AC.7/SR.147, 148 E/C.2/254 and Add.l, E/C.2/259

and Add.l

GA (V) 3rd. Com., 289th, 290th, A/C.3/I. 79, 92

291st, 298th, 305th mtgs.

ESC ( X I I ) 438th mtg.

CHR ( V I I ) E/CN.4/515/Add.11, E/CN.4/528,

paras. 38-49, E/CN.4/573;
E/CN.4/NG0/20, 24, 30

ESC ( X I I I ) E/C.2/SR.1C6; 523rd, i

524th mtgs.

GA (VI) 3rd Com., 366th, 368th

369th, 399th mtgs.

CHR ( V I I I ) E/CN.4/528/Add.l, paras. 28-32;

E/CN.4/NGO/39
ESC (XIV) 665th mtg. E/C.2/335
CHR (IX) E/CN.4/SR.363-367, E/CN.4/674, paras. 21, 22,
393, 409 E/CN.4/L.221, 224 and Rev.1-4,
E/CN.4/L.255 and Rev.l,
E/CN.4/L.256, 257, 258,
ESC (XVI), suppl. 8, paras.
44-50, annex 1 B, a r t . 23,
annex I I I , paras. 1-12
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Page I76

DOCUMENTATION
(continued)

Organ and Records o f Article .

session discussion Other documents number

GA ( V I I I ) 3rd Com., 5C6th mtg 23

CHR ( X ) .E/CN. 69V Add. 5, 6;

E/CN.V702/Add.6, 23
s e c t i o n XXXTV

GA ( I X ) 3rd Com., 565th, 569th, A/C.3/L.413, para. 1 23

580th mtgs.
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ARTICLE 2k

E q u a l i t y before the law

A l l persons a r e equal before the law. The law s h a l l p r o h i b i t

any d i s c r i m i n a t i o n and guarantee to a l l persons equal and e f f e c t i v e
p r o t e c t i o n a g a i n s t d i s c r i m i n a t i o n on any ground such as r a c e , colour,
sex, language, r e l i g i o n , p o l i t i c a l or other opinion, n a t i o n a l or
s o c i a l o r i g i n , property, b i r t h or other s t a t u s .

178. The a r t i c l e contains two c l a u s e s , the f i r s t a f f i r m i n g the p r i n c i p l e of

e q u a l i t y before the law and the second enunciating the p r i n c i p l e of
non-discrimination. The a r t i c l e formerly i n c l u d e d a c l a u s e which would ensure
non-discrimination i n the enjoyment of a l l the r i g h t s recognized i n the covenant,
but i t was thought more appropriate to embody such a c l a u s e under a r t i c l e 2.^/

E q u a l i t y before the law

179. I n d i s c u s s i n g the f i r s t c l a u s e of the a r t i c l e , " a l l persons a r e equal before

the law", i t was pointed out on the one hand t h a t A r t i c l e 7 of the U n i v e r s a l
D e c l a r a t i o n of Human R i g h t s proclaimed the fundamental p r i n c i p l e of e q u a l i t y
before the law, and t h a t i t was important to r e s t a t e t h a t p r i n c i p l e i n the
covenant.. Some misgivings were expressed on the other hand concerning i t s
inclusion. The e x p r e s s i o n " a l l persons are equal before the law" might be h e l d
to mean t h a t the law should be the same f o r everyone, or to preclude the
imposition of reasonable l e g a l d i s a b i l i t i e s upon c e r t a i n c a t e g o r i e s of
i n d i v i d u a l s such as minors or persons of unsound mind. I n r e p l y , i t was explained
t h a t the expression d i d not r e f e r to the substance of the law i t s e l f , but to the
conditions under which, the law was to be a p p l i e d . The p r o v i s i o n was intended to
ensure e q u a l i t y , not i d e n t i t y , of treatment, and would not preclude reasonable
d i f f e r e n t i a t i o n s between i n d i v i d u a l s or groups of i n d i v i d u a l s .

86/ See under a r t i c l e 2.

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P r o h i b i t i o n of d i s c r i m i n a t i o n

180. The second c l a u s e would r e q u i r e the law to " p r o h i b i t any d i s c r i m i n a t i o n and

guarantee to a l l persons equal and e f f e c t i v e p r o t e c t i o n a g a i n s t d i s c r i m i n a t i o n
on any ground such as race, colour, sex, language, r e l i g i o n , p o l i t i c a l or other
opinion, n a t i o n a l or s o c i a l o r i g i n , property, b i r t h or other s t a t u s " . There
was some d i s c u s s i o n as to the n e c e s s i t y and d e s i r a b i l i t y of i n c l u d i n g a c l a u s e
on non-discrimination i n the a r t i c l e . The view was expressed t h a t i t would be
adequate i f the a r t i c l e simply contained a p r o v i s i o n r e l a t i n g to e q u a l i t y before
the law, s i n c e a r t i c l e 2 of the covenant already provided t h a t the r i g h t s
recognized i n the covenant should be accorded to a l l without d i s t i n c t i o n of
any kind. On the other hand, i t was maintained t h a t freedom from d i s c r i m i n a t i o n
should be e s t a b l i s h e d I n the covenant as a r i g h t and not merely as a general
p r i n c i p l e governing the enjoyment of the r i g h t s recognized therein. I t was not
enough to a f f i r m t h a t a l l were equal before the law; the a r t i c l e should a l s o l a y
down a d e f i n i t e p r i n c i p l e , that, t h e r e should be no d i s c r i m i n a t i o n on any ground
such as r a c e , colour, sex, e t c . That p r i n c i p l e should not be l i m i t e d to the
r i g h t s i n c l u d e d i n the covenant, but should extend to a l l r i g h t s , whether or not
they were so included. Against t h i s view, i t was contended t h a t the
best-intentioned government might f i n d i t d i f f i c u l t to agree to extend the
p r i n c i p l e of non-discrimination to a l l r i g h t s and freedoms. A general clause
on non-discrimination might e n t a i l considerable d i f f i c u l t i e s i n connexion with
treatment of such persons as a l i e n s . I t might a l s o cover d i s c r i m i n a t i o n i n
p r i v a t e or s o c i a l r e l a t i o n s h i p which might not f a l l w i t h i n the realm of law.
S t a t e s would f i n d i t d i f f i c u l t to accept a p r o v i s i o n which would impose unduly
vague and u n l i m i t e d o b l i g a t i o n s upon them.

181. The grounds of d i s c r i m i n a t i o n s e t out i n the a r t i c l e , namely, "race, colour,

sex, language, r e l i g i o n , p o l i t i c a l or other opinion, n a t i o n a l or s o c i a l o r i g i n ,
b i r t h or other s t a t u s " , are the same as those enumerated i n A r t i c l e 2 of the
U n i v e r s a l D e c l a r a t i o n of Human R i g h t s . A suggestion was made to s u b s t i t u t e
"ethnic o r i g i n " f o r the words "race" and "colour", which were considered to be
u n s c i e n t i f i c and unprecise. However, i t was p o i n t e d out t h a t the words " r a c e "
and "colour" were used i n the U n i v e r s a l D e c l a r a t i o n and were more p o p u l a r l y
 /2929
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understood than the term "ethnic o r i g i n " . P r o p o s a l s t o add " a s s o c i a t i o n w i t h

minority groups", "economic or other opinion" and "educational attainment" t o
the enumeration were thought t o be unnecessary s i n c e they were deemed adequately
covered by the expressions " d i s c r i m i n a t i o n on any ground" and "other s t a t u s " .
The view was expressed t h a t t h e p r o h i b i t i o n of a l l d i s c r i m i n a t i o n on grounds of
" n a t i o n a l o r i g i n " would mean the a b o l i t i o n of a l l c o n t r o l over f o r e i g n e r s ; and
the p r o h i b i t i o n of d i s c r i m i n a t i o n on grounds of " b i r t h " would r e q u i r e changes
i n e x i s t i n g l e g a l p r o v i s i o n s about i n h e r i t a n c e . T h i s i n t e r p r e t a t i o n , however,
was challenged by c e r t a i n r e p r e s e n t a t i v e s who maintained t h a t t h e a p p l i c a t i o n
of the p r i n c i p l e of non-discrimination had t o be considered i n the l i g h t of
the other p r o v i s i o n s of the covenant. A r t i c l e 1 of the d r a f t covenant enunciated
the r i g h t of peoples t o permanent sovereignty over t h e i r n a t u r a l wealth and
resources; a non-discrimination c l a u s e should not, t h e r e f o r e , be construed as
p r o h i b i t i n g measures t o c o n t r o l a l i e n s and t h e i r e n t e r p r i s e s , Neither should
the p r o h i b i t i o n of d i s c r i m i n a t i o n on grounds of b i r t h he i n t e r p r e t e d t o mean the
a b o l i t i o n of d i s t i n c t i o n between l e g i t i m a t e and I l l e g i t i m a t e c h i l d r e n i n matters
r e l a t i n g t o i n h e r i t a n c e , s i n c e under a r t i c l e 22 t h e i n s t i t u t i o n of t h e f a m i l y was
recognized as the n a t u r a l and fundamental u n i t of society,,

182. I n a f i r s t d r a f t , a clause providing t h a t "everyone s h a l l be accorded equal

p r o t e c t i o n a g a i n s t any incitement t o such d i s c r i m i n a t i o n " was included. I t was
subsequently decided t o d e l e t e the c l a u s e , s i n c e i t was f e l t t h a t such c l a u s e
might give r i s e t o i n t e r p r e t a t i o n s which would be dangerous t o human freedoms.
The view was a l s o expressed t h a t i t might be more appropriate t o deal with t h e
matter i n a separate a r t i c l e . A proposal t o i n c l u d e a c l a u s e which would r e q u i r e
S t a t e s p a r t i e s t o p r o h i b i t by law any form of propaganda i n favour of f a s c i s t
or n a z i views or of r a c i a l and n a t i o n a l e x c l u s i v e n e s s was a l s o r e j e c t e d . I t
was pointed out t h a t the terms " f a s c i s t " and " n a z i " could not be p r e c i s e l y defined
i n a manner t h a t would be u n i v e r s a l l y acceptable; moreover, t h e proposal was i n
the nature of a l i m i t a t i o n on freedom of opinion, as s e t f o r t h i n a r t i c l e 19,
and a s i m i l a r proposal i n connexion w i t h t h a t a r t i c l e had been r e j e c t e d . '

87/ See annotation under a r t i c l e 19 of the d r a f t covenant on c i v i l and

p o l i t i c a l r i g h t s , paragraph 13^.
English
Page l80

DOCUMEKTATIOI

Organ and Records of Article

session discussion Other documents number

DC ( I ) E / C N . V A C . 1/11; 21, annex G, p.86; 52

CHR ( I I ) E/CN.4/AC.3/SR.8, E/CN.V56, chapt. I I , a r t . 19; ESC ( V l ) , 19

9; E/CN. 4/SR.34, suppl. 1, annex B, a r t . 20
35

DC ( I I ) E/CN. V A C . 1/26, E/CN.VAC. 1/19; 30; E/CN.V82/Rev.l; 20

27,28,31 82/Add.8; 95

ESC ( V I I ) E/C.2/9+

CHR (V) E/CN.ySR.121, E/CN.V170; 232; 237; 244 and C o r r . l ; 20

122,123 3 I I , 312, 3l4; ESC ( I X ) , suppl.10,
annexes I and I I , a r t . 20

CHR ( V I ) E/CN.SR.172, E/CN.V353/Add.l0,llr 358; 365; 4l8; 20

173,17^,175,200 Wjy 45; 455 and R e v . l ; 456; 458;
E/CN.4/L.7; ESC ( X l ) , suppl.5,
annexes I and I I , a r t . 17

ESC ( X I ) E/AC.7/SR.147, E/L.68; E/C.2/259/Add.l 17

l48,l49

GA (V) 3rd Com., 289th, 17

290th mtgs.

CHR ( V I I ) ESC ( X I I I ) , suppl.9, annex I I I , a r t . 17 17

GA ( V I ) 3rd Com., 362nd mtg.

CHR (VIII) E/CN.SR.326, E/CN.4/528, p a r a s . 214-221; 528/Add.l, 17

327,328 p a r a s . 119-122; 668/Add.l4; E/CN.4/L.127,
147,157,204,205; ESC ( X I V ) , suppl. 4,
p a r a s . 258-262, and annex I B , a r t . 19

CHR ( I X ) E/CN.4/694/Add.2, 5, 6 19

GA ( I X ) 3rd Com., 562nd, 24

565th, 567th,
570th, 571st,
576th, 580th
mtgs.
 k/292.9
English
Page l 8 l

ARTICLE 25

Rights of M i n o r i t i e s

I n those S t a t e s i n which e t h n i c , r e l i g i o u s or l i n g u i s t i c
m i n o r i t i e s e x i s t , persons belonging to such m i n o r i t i e s s h a l l
not be denied the r i g h t , i n community w i t h the other members
of t h e i r group, to enjoy t h e i r own c u l t u r e , to p r o f e s s and
p r a c t i s e t h e i r own r e l i g i o n , or to use t h e i r own language.

183. I t was agreed t h a t , while a r t i c l e 2, paragraph 1, and a r t i c l e 2h of the

d r a f t covenant on c i v i l and p o l i t i c a l r i g h t s contained a general p r o h i b i t i o n of
d i s c r i m i n a t i o n , d i f f e r e n t i a l treatment might be granted to m i n o r i t i e s i n order
to ensure them r e a l e q u a l i t y of s t a t u s w i t h the other elements of the
population. I t was f e l t t h a t an a r t i c l e on t h i s question should be included in
88/

the d r a f t covenant on c i v i l and p o l i t i c a l r i g h t s . '

Meaning of the word " m i n o r i t i e s " ^ /

184. There was some d i s c u s s i o n of the meaning of the word " m i n o r i t i e s " . It
was agreed t h a t the a r t i c l e should cover only separate or d i s t i n c t groups,
well-defined and l o n g - e s t a b l i s h e d on the t e r r i t o r y of a S t a t e . This appeared to
be the meaning of the opening c l a u s e , " i n those S t a t e s i n which e t h n i c ,
r e l i g i o u s or l i n g u i s t i c m i n o r i t i e s e x i s t , . . . " . According to one opinion, the
d r a f t covenant should d e a l with " n a t i o n a l m i n o r i t i e s " ; according to another
opinion, " e t h n i c , r e l i g i o u s or l i n g u i s t i c groups"; according to a t h i r d
suggestion, " n a t i o n a l , e t h n i c , r e l i g i o u s or l i n g u i s t i c m i n o r i t i e s " . The
expression, " e t h n i c , r e l i g i o u s or l i n g u i s t i c m i n o r i t i e s " , was adopted.
90/
Nature and scope of the r i g h t s of m i n o r i t i e s '
185. I t was agreed t h a t persons belong to e t h n i c , r e l i g i o u s or l i n g u i s t i c
m i n o r i t i e s should have the r i g h t "to enjoy t h e i r own c u l t u r e , to p r o f e s s and

88/ E/CN.4/SR.303, 368. A t t e n t i o n i s drawn to the t e x t proposed by the Sub-

Commission on Prevention of D i s c r i m i n a t i o n and P r o t e c t i o n of M i n o r i t i e s
(E/CN.U/358, para.47)
89/ E/CN.4/SR.369, 370; E/CN.4/358, para.47, r e s . E ; E / C N . 4 / L . 2 2 2 , 225, 26l.
90/ E/CN. 4/SR.257, 368, 369, 370; E/CN.4/358, para.47, r e s . E ; E/CN .222,
225, 26O; GA ( V ) , 3rd Com., 305th mtg., GA ( I X ) , 3rd Com., 580th mtg.
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p r a c t i c e t h e i r own r e l i g i o n or to use t h e i r own language". A proposal of a more

s p e c i f i c c h a r a c t e r , "... to possess t h e i r n a t i o n a l schools, l i b r a r i e s , museums
and other c u l t u r a l and educational i n s t i t u t i o n s " , was not accepted.
186. The p r o v i s i o n s concerning the r i g h t s of m i n o r i t i e s , i t was understood,
should not be a p p l i e d i n such a manner as to encourage the c r e a t i o n of new
m i n o r i t i e s or to o b s t r u c t the process of a s s i m i l a t i o n . I t was f e l t t h a t such
tendencies could be dangerous f o r the u n i t y of the S t a t e . I n view of the
c l a r i f i c a t i o n given on those p o i n t s , i t was thought unnecessary to s p e c i f y i n
the a r t i c l e t h a t "such r i g h t s may not be i n t e r p r e t e d as e n t i t l i n g any group
s e t t l e d i n the t e r r i t o r y of a S t a t e , p a r t i c u l a r l y under the terms of i t s
immigration laws, to form w i t h i n t h a t State separate communities which might
impair i t s n a t i o n a l u n i t y or s e c u r i t y " . Also r e j e c t e d was a proposal t h a t
"every person s h a l l have the r i g h t to show f r e e l y h i s membership of an e t h n i c or
l i n g u i s t i c group, to use without hindrance the name of h i s group, to l e a r n the
language of t h i s group and to use i t i n p u b l i c or p r i v a t e l i f e , . . . . " . I t was
thought t h a t d i s r u p t i v e tendencies might r e s u l t i f "every person" were to c l a i m
the b e n e f i t of the r i g h t s of m i n o r i t i e s . For t h i s reason, i t was decided to
1
q u a l i f y the e x e r c i s e of m i n o r i t i e s r i g h t s w i t h the c l a u s e " i n community w i t h the
other members of t h e i r group".

187. Although i t was g e n e r a l l y agreed t h a t no member of a minority group

should be "subjected on t h a t account to any d i s c r i m i n a t i o n whatsoever and
p a r t i c u l a r l y such d i s c r i m i n a t i o n as might deprive him of the r i g h t s enjoyed by
other c i t i z e n s of the same S t a t e " , i t was not thought n e c e s s a r y to include such
a clause i n the a r t i c l e , f o r the general p r o v i s i o n s of a r t i c l e 2, paragraph 1,
of the d r a f t covenant on c i v i l and p o l i t i c a l r i g h t s should provide adequate
safeguards i n t h a t respect.

91/
Obligations of S t a t e s P a r t i e s - '
188. There was a l s o some d i s c u s s i o n on the extent of the o b l i g a t i o n s of S t a t e s
towards m i n o r i t i e s . A proposal t h a t "the State s h a l l ensure to n a t i o n a l

91/ /CN.ySR.256, 257, 369; E/CN.4/358, p a r a A 7 , r e s . E ; E/CNA/L.222.

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m i n o r i t i e s the r i g h t . . . " was rejected. I t was argued t h a t , under such a t e x t

which imposed a p o s i t i v e o b l i g a t i o n on S t a t e s , minority consciousness could be
a r t i f i c i a l l y awakened or stimulated. The formula "the persons belonging to
such m i n o r i t i e s s h a l l not be denied the r i g h t . . . " , which was adopted, seemed to
imply t h a t the o b l i g a t i o n s of S t a t e s would be l i m i t e d to permitting the f r e e
e x e r c i s e of the r i g h t s of m i n o r i t i e s .
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DOCUMENTATION

Organs and Article

session Records of d i s c u s s i o n Other documents number

( I ) E/CN.4/21, annex A, a r t . 4 6

CHR ( I I ) E/CN.4/35

CHR ( I I I ) E/CN.4/89

CHR (V) E/CN.4/SR.133 E/CN. 4/237

ESC (X) E/C .2/239

CHR ( V I ) E/CN.4/353/Add.2, 6;
E/CN.4/358, p a r a . 47, r e s . E ;
E/CN.4/427, 435;
E/CN.4/NGO/4

ESC ( X I ) E/C.2/254

GA (V) 3rd Com., 289th, 290th, A/C.3/L.79, 92

291th, 305th mtgs.

ESC ( X I I ) 438th mtg.

CHR ( V I I ) E/CN.4/515/Add.ll;
E/CN.4/528, p a r a s . 16-19;
E/CN.4/573, 6 4 1 annex I I ,
re s. I I

ESC (XIII) 524th mtg.

GA ( V I ) 3rd Com., 366th, 400th,

4oist mtgs.

CHR (VIII) E/CN.4/SR.256, 257, E/CN.4/528/Add.l, p a r a s . 10-12;

E/CN.4/655/Add.4

CHR ( I X ) E/CN.4/SR.368-37I E/CN.4/674, p a r a s . 6-8;

E/CN.4/L.222, 225, 26O, 261;
ESC (XVI) suppl. 8, p a r a s . 5 I -
56, annex I B , a r t . 25,
annex I I I , p a r a s . 13-22

CHR (X) E/CN.4/702, s e c t i o n I I 25

GA ( I X ) 3rd Com., 571st and

580th mtgs. 25
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ARTICLE 26

P r o h i b i t i o n of advocacy of n a t i o n a l , r a c i a l or r e l i g i o u s h o s t i l i t y

Any advocacy of n a t i o n a l , r a c i a l or r e l i g i o u s h o s t i l i t y
t h a t c o n s t i t u t e s an incitement t o hatred and v i o l e n c e s h a l l be
p r o h i b i t e d by the law o f the S t a t e .

189- The question was debated-^whether the covenant should include an a r t i c l e

p r o h i b i t i n g "any advocacy of n a t i o n a l , r a c i a l or r e l i g i o u s h o s t i l i t y " . ^ / Qn the
one hand, the opinion was expressed t h a t l e g i s l a t i o n was not the most e f f e c t i v e
means to d e a l w i t h the matter, and t h a t i f propaganda should c o n s t i t u t e a menace
to p u b l i c peace, a r t i c l e 19, paragraph 3, of the d r a f t covenant on c i v i l and
9k/
p o l i t i c a l r i g h t s would be a p p l i c a b l e . ' On the other hand, i t was emphasized t h a t
the strong i n f l u e n c e of modern propaganda on the minds of men rendered legislative
i n t e r v e n t i o n necessary and t h a t the general p r o v i s i o n s of a r t i c l e 19, paragraph 3,
were not adequate, as they d i d not impose upon S t a t e s p a r t i e s any o b l i g a t i o n to
p r o h i b i t the advocacy of n a t i o n a l , r a c i a l or r e l i g i o u s h o s t i l i t y .
19. F e a r s were expressed t h a t an a r t i c l e p r o h i b i t i n g such advocacy might lead
to abuse and would be detrimental to freedom of expression. I t was proposed that
only such advocacy of n a t i o n a l , r a c i a l or r e l i g i o u s h o s t i l i t y as " c o n s t i t u t e s an
<
incitement t o v i o l e n c e " should be p r o h i b i t e d by the law of the S t a t e . ^

92J E/CN.U/AC.I/SR.28; E/CN.4/SR-377, 378; GA ( i X ) , 3rd Com., 570th, 575th,

576th mtgs.
95/ The matter arose as the Sub-Commission on Prevention of D i s c r i m i n a t i o n and
P r o t e c t i o n of M i n o r i t i e s recommended the i n c l u s i o n of such an a r t i c l e
( s e e E/CN.U/64l, p a r a . t-, annex I I , r e s . V ) .
9kJ During the f i r s t reading of the d r a f t covenants a t the n i n t h s e s s i o n of the
General Assembly an amendment was submitted proposing the d e l e t i o n of t h i s
a r t i c l e and the i n s e r t i o n of a p r o v i s i o n i n a r t . 19 (GA ( I X ) , a . i . 58,
A/C3/LA13).
9/ E / C N / S R . Y \ k , 379; E/CN.4-/82/Rev.l; GA ( I X ) , 3rd Com., 568th mtg.
/
English
Pase 186

191 I n d i s c u s s i n g t h i s p r o p o s a l t h e view was expressed t h a t no l a w would he

e f f e c t i v e i f i t , d i d n o t go t o t h e r o o t o f t h e e v i l , I t was t h e r e f o r e proposed t o
p r o h i b i t "any advocacy o f n a t i o n a l c r r a c i a l e x c l u s i v e n e s s , h a t r e d and contempt,
o r r e l i g i o u s h o s t i l i t y . , p a r t i c u l a r l y o f such a n a t u r e as t o c o n s t i t u t e an
:
i n c i t e m e n t t o v i o l e n c e as w e l l as t h e propaganda " o f F a s c i s t - N a z i views".
However, such expressions as " e x c l u s i v e n e s s " , "contempt", " F a s c i s t - N a z i views"
96 /
were c o n s i d e r e d t o o vague; and t h e p r o p o s a l was n o t a d o p t e d . '
192. Another p r o p o s a l would p r o h i b i t any advocacy o f n a t i o n a l , r a c i a l o r
r e l i g i o u s h o s t i l i t y t h a t c o n s t i t u t e d "an i n c i t e m e n t t o h a t r e d " as "an i n c i t e m e n t
t o v i o l e n c e " The -.pinion was expressed t h a t "an i n c i t e m e n t t o h a t r e d " was no
l e s s s e r i o u s than 'an i n c i t e m e n t t o violence",, and t h a t b o t h should be p r o h i b i t e d .
I t was argued., however, t h a t "an i n c i t e m e n t t o v i o l e n c e " was a d e f i n a b l e l e g a l
concept w h i l e "an i n c i t e m e n t t o h a t r e d " was a s u b j e c t i v e n o t i o n t h a t c o u l d n o t
e a s i l y lend i t s e l f t o l e g a l a c t i o n . I t was suggested t h a t t h e e x p r e s s i o n "an
i n c i t e m e n t t o h a t r e d and v i o l e n c e " , i n t e r p r e t e d c u m u l a t i v e l y , m i g h t be an
a p p r o p r i. a t e -l o r m ,u t a97/'
+
.
19 As t o t h e groups o f persons who should be p r o t e c t e d under t h e a r t i c l e it-
was proposed t o p r o h i b i t f u r t h e r "every a c t w h i c h tends t o s t i r up h a t r e d o r
v i o l e n c e a g a i n s t any p e r s o n o r group o f persons b y reason o f r a c e , c o l o u r , sex,
language, r e l i g i o n , p o l i t i c a l , economic o r o t h e r o p i n i o n , n a t i o n a l o r s o c i a l
o r i g i n , p r o p e r t y , e d u c a t i o n a l a t t a i n m e n t , b i r t h o r o t h e r s t a t u s " , b u t such a
98/
c l a u s e was n o t i n c l u d e d i n t h e t e x t o f t h e a r t i c l e .
194. The words " s h a l l be p r o h i b i t e d b y t h e l a w o f t h e S t a t e " were chosen i n
preference t o t h e words " c o n s t i t u t e s a crime and s h a l l be p u n i s h e d under t h e l a w
o f t h e State''. I t was f e a r e d b y some t h a t t h e words " s h a l l be p r o h i b i t e d b y t h e
law o f t h e S t a t e " m i g h t encourage t h e e s t a b l i s h m e n t o f governmental censorship.''
96/ E/CN /SR. 123, 377; E/CN.4/223, E/CN , .269 .
97/ E/CN/SR. 123, 379; S/CN.4/358, p a r a . 53; E/CN/.270; GA ( I X ) , 3rd Com.,
570th mtg.
98/ E/CN.4/353/Add.3
99/ E/CN.SR.174, 379J E/CN.4/52, 694/Add.7-
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Another opinion was t h a t the a r t i c l e could not he i n t e r p r e t e d as suggesting

t h a t S t a t e s should impose c e n s o r s h i p . The view was expressed t h a t S t a t e s
p a r t i e s would he f r e e to enact whatever l e g i s l a t i o n they deemed appropriate to
put the a r t i c l e i n t o e f f e c t .
A/2929
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DOCUMENTATION

Organ and Article

session Records o f d i s c u s s i o n Other documents number

CHR ( I I ) E/CN.4/SR.34, 35 E/CN.4/41, 51, 52; ESC ( V I ) , suppl.I,

annex B, a r t . 2 1
DC ( I I ) E/CN.4/AC1/SR.28 E/CN.4/82 and R e v . l , E/CN.4/82/Add.4, 21
12
ESC ( V I I ) E/C.2/94
CHR ( V ) E/CN /SR.123 E/CN.4/223; ESC ( I X ) , suppl.10,
annex I , a r t . 2 1 , annex I I , a r t . 2 1
ESC ( X ) E/C.2/241 21
CHR ( V I ) E/CN /SR. 174, 175 E/CN.4/353/Add.l, 2, 3, 6, 8, 10, 21
11; E/CN.4/358, p a r a . 53;
E/CN.4/NGO/7
GA ( V ) 3rd Com., 289th, A/C.3/L.96
291st mtgs.
ESC ( X I I ) 438th mtg.
CHR ( V I I ) E/CN.4/515/Add.4, 1 1 ; E/CN.4/528,
p a r a . 219; E/CN.4/641, p a r a . 43,
annex I I , r e s . V; E/CN.4/NG0/21
ESC ( X I I I ) 524th mtg.
CHR ( V I I I ) E/CN.4/528/Add.l, p a r a s . 119-122;
E/CN.4/NGO/39
CHR ( I X ) E/CN.4/SR.377-379 E/CN.4/674, p a r a . 9; E/CN.4/L.269,
270, 271; ESC ( X V I ) , suppl.8,
p a r a s . 72-77, annex I B , a r t . 26,
annex I I I , p a r a s . 35"38
CHR ( X ) E/CN.4/694/Add.2, 5, 6, 7; 26
E/CN.4/702, S e c t . X X I I ,
E/CN.4/70, p a r a s . l 4 5 - l 4 6
GA ( I X ) 3rd Com., 565th, A/C.3/L.413, p a r a s . 2 and 3 26
568-571st, 575th,
576th, 580th mtgs.
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RIGHT CF PROPERTY

195 The q u e s t i o n o f i n c l u d i n g an a r t i c l e on t h e r i g h t o f p r o p e r t y i n t h e draft

covenants was t h e s u b j e c t o f c o n s i d e r a b l e discussion. No agreement was reached
s h o u l d be i n c l u d e d i n t h e covenant on c i v i l
and p o l i t i c a l r i g h t s , o r i n t h e covenant on economic, s o c i a l and c u l t u r a l rights
or i n both.
196. The p r i n c i p a l issues r a i s e d r e l a t e d t o : ( l ) the inclusion or non-inclusion
o f an a r t i c l e on t h e r i g h t o f p r o p e r t y i n t h e d r a f t covenants; (2) the formulation
o f t h e r i g h t ; (3) l i m i t a t i o n s on t h e r i g h t ; (k) r e s t r i c t i o n s on S t a t e a c t i o n .

I n c l u s i o n o r n o n - i n c l u s i o n i n t h e d r a f t covenants

197. W h i l e no one q u e s t i o n e d the r i g h t o fthe individual t o own p r o p e r t y , some

doubted t h e a d v i s a b i l i t y o f i n c l u d i n g an a r t i c l e on t h e r i g h t o f p r o p e r t y i n t h e
covenants. I t was s t a t e d t h a t t h e r e were c o n s i d e r a b l e differences o f opinion
w i t h r e g a r d t o t h e concept o f p r o p e r t y and t h e r e s t r i c t i o n s t o which the right
o f p r o p e r t y s h o u l d be s u b j e c t . I n v i e w o f such d i v e r g e n c i e s i t w o u l d be v e r y
d i f f i c u l t t o d r a f t a t e x t w h i c h would f i n d common acceptance. The v i e w was a l s o
expressed t h a t i t w o u l d seem i n a p p r o p r i a t e t o i n c l u d e such a r i g h t as t h a t o f
p r o p e r t y i n a covenant d e a l i n g w i t h i n h e r e n t r i g h t s o f t h e human p e r s o n . I t was
s u f f i c i e n t t h a t t h e r i g h t t o own p r o p e r t y was p r o c l a i m e d i n the Universal
D e c l a r a t i o n o f Human R i g h t s . S t a t e s s h o u l d be l e f t f r e e t o work o u t d e t a i l e d
regulation o f the r i g h t .

198. On t h e o t h e r hand, a l a r g e number o f r e p r e s e n t a t i v e s f e l t t h a t an a r t i c l e

on t h e r i g h t o f p r o p e r t y should be i n c l u d e d i n t h e covenants. To o m i t i t m i g h t
create t h e impression t h a t i t was n o t a f u n d a m e n t a l human r i g h t . Moreover, t h e

/ The Commission on Human R i g h t s c o n s i d e r e d v a r i o u s d r a f t s a t i t s s e v e n t h ,

e i g h t h and t e n t h s e s s i o n s , b u t was u n a b l e t o adopt any t e x t . Realizing
t h e d i f f i c u l t y o f d r a f t i n g an a r t i c l e t h a t would command t h e s u p p o r t o f
t h e m a j o r i t y , t h e Commission, a t i t s t e n t h s e s s i o n , adjourned
c o n s i d e r a t i o n o f t h e q u e s t i o n s i n e d i e . (See ESC ( X V I I l ) , s u p p l . 7 ,
p a r a s . U0-71).
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r i g h t t o own p r o p e r t y was r e c o g n i z e d i n t h e c o n s t i t u t i o n s and laws o f most

countries.

Formulation o f the r i g h t

199. One v i e w was t h a t t h e a r t i c l e s h o u l d he d r a f t e d i n b r o a d and g e n e r a l t e r m s .

Any a t t e m p t t o be e l a b o r a t e and p r e c i s e would be l i k e l y t o a c c e n t u a t e t h e
d i f f e r e n c e s o f views r e g a r d i n g p r o p e r t y r i g h t s embodied i n t h e s o c i a l and
p o l i t i c a l systems o f v a r i o u s S t a t e s , t h u s making any agreement on t h e s u b j e c t
extremely d i f f i c u l t , i f n o t impossible, t o achieve. A t e x t based on a r t i c l e 17
o f t h e U n i v e r s a l D e c l a r a t i o n o f Human R i g h t s was proposed. Under t h i s p r o p o s a l
S t a t e s p a r t i e s would r e c o g n i z e t h a t "everyone has t h e r i g h t t o own p r o p e r t y a l o n e
as w e l l as i n a s s o c i a t i o n w i t h o t h e r s " , and t h a t "no one s h a l l be a r b i t r a r i l y
deprived o f h i s property".
200. A second v i e w was t h a t t h e a r t i c l e s h o u l d be d r a f t e d i n p r e c i s e l e g a l terms
and s h o u l d s p e l l o u t t h e necessary q u a l i f i c a t i o n s and l i m i t a t i o n s t o w h i c h t h e
r i g h t o f p r o p e r t y would be s u b j e c t . I t was necessary t o emphasize t h e d u t y o f
S t a t e s t o f u l f i l t h e i r o b l i g a t i o n s i n r e s p e c t o f t h e r i g h t , as w e l l as t o t a k e
i n t o account t h e r e s t r i c t i o n s and l i m i t a t i o n s w h i c h m i g h t be imposed on t h e r i g h t .
V a r i o u s t e x t s were proposed which would n o t o n l y p r o v i d e t h a t S t a t e s p a r t i e s
s h o u l d u n d e r t a k e t o r e s p e c t t h e r i g h t o f p r o p e r t y , b u t would i n d i c a t e t h a t t h e
r i g h t was n o t a b s o l u t e and would s p e c i f y t h e c o n d i t i o n s under w h i c h a p e r s o n
m i g h t be d e p r i v e d o f h i s p r o p e r t y .
201. A t h i r d view was t h a t t h e a r t i c l e on t h e r i g h t o f p r o p e r t y s h o u l d n o t
attempt t o i n d i c a t e t h e l i m i t s w i t h i n which the r i g h t should enjoy i n t e r n a t i o n a l
p r o t e c t i o n , b u t s h o u l d s i m p l y d e f i n e t h e scope w h i c h s h o u l d be g i v e n t o t h e r i g h t
i n o r d e r t o make i t a human r i g h t , and, as such, f u n d a m e n t a l and i n a l i e n a b l e .
I t was p o i n t e d o u t t h a t t h e concept o f f u n d a m e n t a l r i g h t o f p r o p e r t y m i g h t cover
t h e r i g h t t o a minimum amount o f p r o p e r t y necessary f o r decent l i v i n g and f o r
m a i n t a i n i n g t h e d i g n i t y o f t h e i n d i v i d u a l and t h e home. Only t o t h a t e x t e n t
c o u l d t h e r i g h t o f p r o p e r t y be r e g a r d e d as f u n d a m e n t a l and i n v i o l a b l e . A text
was proposed w h i c h would s t i p u l a t e t h a t "every p e r s o n has a r i g h t t o own such
p r i v a t e p r o p e r t y , as meets t h e e s s e n t i a l needs o f decent l i v i n g and h e l p s t o
m a i n t a i n t h e d i g n i t y o f t h e i n d i v i d u a l and t h e home". This t e x t was based on
a r t i c l e 23 o f t h e I n t e r - A m e r i c a n D e c l a r a t i o n o f t h e R i g h t s and D u t i e s o f Man
adopted a t Bogota i n 1948.

Limitations o f the r i g h t

202. I t was g e n e r a l l y a d m i t t e d t h a t t h e r i g h t t o own p r o p e r t y was n o t a b s o l u t e .

At t h e same t i m e i t was"recognized t h a t t h e l i m i t a t i o n s on t h e r i g h t v a r i e d f r o m
t i m e t o t i m e and f r o m c o u n t r y t o c o u n t r y . Consequently, i t was d i f f i c u l t t o reac
agreement n o t o n l y on t h e e x t e n t o f t h e l i m i t a t i o n s t o he i n c l u d e d i n t h e
a r t i c l e , h u t a l s o on t h e manner i n w h i c h such l i m i t a t i o n s were t o he d e f i n e d ,
203. V a r i o u s l i m i t a t i o n s on t h e r i g h t o f p r o p e r t y were mentioned. I t was
proposed t h a t t h e r i g h t should he " s u b j e c t t o such l i m i t a t i o n s and r e s t r i c t i o n s
as a r e imposed b y l a w i n t h e p u b l i c i n t e r e s t and i n t h e i n t e r e s t o f s o c i a l
p r o g r e s s i n t h e c o u n t r y concerned". A s u g g e s t i o n was made t h a t t h e t e x t should
make i t c l e a r t h a t t h e l i m i t a t i o n s imposed must he " r e a s o n a b l e " .
204. Others f a v o u r e d a l i m i t a t i o n s clause w h i c h would safeguard domestic laws
r e l a t i n g t o property. To t h i s end i t was proposed t h a t t h e r i g h t s h o u l d he
" s u b j e c t t o t h e laws o f t h e c o u n t r y i n w h i c h t h e p r o p e r t y i s owned". Such a
clause would a l l o w f o r t h e divergencies i n the l e g i s l a t i o n of various countries
r e l a t i n g t o property. On t h e o t h e r hand, I t was pointed, o u t t h a t i t was n o t
enough t o t a k e account o f domestic laws i n t h e m a t t e r o f p r o p e r t y r i g h t s . A
standard o f reasonableness and j u s t i c e , t o which domestic l e g i s l a t i o n should
conform, must be p r o v i d e d ; o t h e r w i s e , an i n t e r n a t i o n a l enunciation of the r i g h t
w o u l d become meaningless.
205. Other forms o f l i m i t a t i o n s mentioned o r suggested r e l a t e d t o ( a ) general
r e g u l a t i o n s i n t h e i n t e r e s t o f p u b l i c h e a l t h , s a f e t y o r w e l f a r e imposed by t h e
S t a t e under i t s p o l i c e power; ( b ) l i m i t a t i o n s a r i s i n g f r o m t h e S t a t e ' s power
of t a x a t i o n ; ( c ) death d u t i e s ; ( d ) c o n f i s c a t i o n o f p r o p e r t y o f persons
committing c r i m i n a l offenses; ( e )confiscation or l i m i t a t i o n of property of
enemy a l i e n s i n time o f war; ( f ) expropriation. I t was a l s o p o i n t e d o u t t h a t
t h e r i g h t t o own p r o p e r t y was s u b j e c t t o t h e p r o v i s i o n s o f a r t i c l e 1 , p a r a g r a p h 3
o f t h e covenants c o n c e r n i n g t h e r i g h t o f p e o p l e s and n a t i o n s t o permanent
s o v e r e i g n t y over t h e i r n a t u r a l w e a l t h and r e s o u r c e s ,
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R e s t r i c t i o n s on S t a t e a c t i o n

2C6. While t h e r e was wide agreement t h a t t h e r i g h t t o own p r o p e r t y was s u b j e c t

t o some degree o f c o n t r o l b y t h e S t a t e , i t was f e l t t h a t c e r t a i n safeguards
a g a i n s t abuse must be p r o v i d e d . However, t h e r e was c o n s i d e r a b l e difficulty i n
r e a c h i n g agreement on such s a f e g u a r d s .
207. One v i e w was t h a t i t was s u f f i c i e n t t o i n c o r p o r a t e t h e t e x t o f p a r a g r a p h 2
o f a r t i c l e 17 o f t h e U n i v e r s a l D e c l a r a t i o n w h i c h p r o v i d e d t h a t "no one s h a l l be
a r b i t r a r i l y deprived o f h i s property". The clause w o u l d ensure t h e r i g h t o f t h e
i n d i v i d u a l t o enjoyment o f ownership w i t h o u t unreasonable i n t e r f e r e n c e , and
w o u l d p r o h i b i t t a k i n g o f p r o p e r t y w i t h o u t compensation. On t h e o t h e r hand, i t
was contended t h a t t h e t e x t o f t h e D e c l a r a t i o n was n o t s u i t a b l e f o r use i n t h e
covenants s i n c e i t l a c k e d l e g a l p r e c i s i o n . The t e r m " a r b i t r a r i l y " c a r r i e d
d i f f e r e n t connotations i n European and Anglo-Saxon j u r i s p r u d e n c e and had no
l e g a l c o n n o t a t i o n a t a l l i n i n t e r n a t i o n a l law, o r i n t h e j u r i s p r u d e n c e o f some
countries. Some t h o u g h t t h a t i n o r d e r t o c l a r i f y i t s meaning, t h e words " o r
i l l e g a l l y " o r " o r u n l a w f u l l y " m i g h t be added t o " a r b i t r a r i l y " . Another suggestion
was t o add a f t e r " a r b i t r a r i l y " t h e words " t h a t i s t o say, u n l a w f u l l y " . Others
felt t h a t t h e expression " w i t h o u t due process o f l a w " s h o u l d be used i n s t e a d o f
"arbitrarily". However, i t was p o i n t e d o u t t h a t t h e e x p r e s s i o n "due process o f
law" h a d no p r e c i s e meaning. Only i n c e r t a i n c o u n t r i e s d i d t h e e x p r e s s i o n carry
b o t h a p r o c e d u r a l and s u b s t a n t i v e meaning. I n i t s s u b s t a n t i v e c o n t e x t i t was
i n t e n d e d t o p r e v e n t a r b i t r a r y l a w and t o l i m i t t h e S t a t e ' s l e g i s l a t i v e powers.
Unless t h e e x p r e s s i o n was u n d e r s t o o d i n t h a t sense, laws e n a c t e d a c c o r d i n g t o
p r o p e r p r o c e d u r e s m i g h t s a t i s f y t h e r e q u i r e m e n t s o f "due p r o c e s s " , b u t m i g h t
nevertheless be " a r b i t r a r y " ; hence ; t h e use o f t h e t e r m " a r b i t r a r i l y " was t o be
p r e f e r r e d , e s p e c i a l l y s i n c e i t had been employed b o t h i n t h e U n i v e r s a l
D e c l a r a t i o n and i n t h e d r a f t covenant on c i v i l and p o l i t i c a l rights.

208. Another view was t h a t t h e a r t i c l e s h o u l d p r e s c r i b e t h e c o n d i t i o n s under

w h i c h p r o p e r t y c o u l d be e x p r o p r i a t e d and t h e amount o f compensation t o be p a i d
t o i t s owner. I t was h e l d t h a t e x p r o p r i a t i o n m i g h t t a k e p l a c e o n l y f o r
considerations o f public necessity or u t i l i t y or i n the i n t e r e s t of s o c i a l
progress, and, as a g e n e r a l r u l e , s u b j e c t t o compensation.
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209. O p i n i o n d i f f e r e d as t o w h e t h e r t h e a r t i c l e s h o u l d c o n t a i n an e x p l i c i t
r e f e r e n c e t o t h e q u e s t i o n o f compensation, and r e g a r d i n g t h e amount o f
compensation t o be p a i d . One v i e w on t h e f i r s t q u e s t i o n was t h a t i t was n o t
n e c e s s a r y t o make express p r o v i s i o n c o n c e r n i n g t h e payment o f compensation. The
concept o f j u s t compensation was i m p l i c i t i n t h e c l a u s e p r o h i b i t i n g arbitrary
deprivation of property. The o p i n i o n was a l s o expressed t h a t a c l a u s e
s t i p u l a t i n g t h a t e x p r o p r i a t i o n s h o u l d n o t t a k e p l a c e e x c e p t i n accordance w i t h
t h e p r o v i s i o n s o f t h e l a w would be s u f f i c i e n t , s i n c e t h e l a w w o u l d l a y down a l l
t h e c o n d i t i o n s under w h i c h e x p r o p r i a t i o n w o u l d be c a r r i e d " o u t . On t h e o t h e r
hand, i t was m a i n t a i n e d t h a t compensation must be e x p l i c i t l y mentioned i n o r d e r
t o emphasize t h a t no e x p r o p r i a t i o n o f p r o p e r t y s h o u l d t a k e p l a c e w i t h o u t t h e
owner b e i n g compensated.

210. As t o t h e amount o f compensation t o be p a i d i n case o f e x p r o p r i a t i o n ,

v a r i o u s p r o p o s a l s and s u g g e s t i o n s were made. Some members h e l d t h a t t h e r e s h o u l d
be " j u s t compensation", " f a i r o r e q u i t a b l e compensation", "due compensation", o r
" p r i o r o r f a i r indemnity". There was no g e n e r a l agreement as t o t h e meaning o f
the expressions " j u s t compensation" and " f a i r compensation". The e x p r e s s i o n
"due compensation", i t was t h o u g h t , w o u l d i m p l y t h a t t h e compensation t o be p a i d
s h o u l d be e q u i v a l e n t t o t h e v a l u e o f t h e p r o p e r t y t a k e n .

211. Other members f a v o u r e d a c l a u s e s t i p u l a t i n g t h a t compensation s h o u l d be

p a i d "as p r e s c r i b e d b y l a w " . The f o r m u l a was p r e f e r r e d , s i n c e i t would o b v i a t e
d i f f i c u l t i e s a r i s i n g o u t o f d i v e r g e n c i e s i n t h e concept o f compensation w h i c h
existed i n various countries. The q u e s t i o n o f what c o n s t i t u t e d " j u s t " o r " f a i r "
compensation w o u l d be a v o i d e d .
212. Some members would p r e f e r t h e f o r m u l a t h a t compensation s h o u l d be "as
p r e s c r i b e d b y l a w and b y t h e g e n e r a l p r i n c i p l e s o f i n t e r n a t i o n a l l a w " . I n support
o f t h i s w o r d i n g , i t was argued t h a t w h i l e domestic laws w o u l d o r d i n a r i l y a p p l y
t o a l l persons w i t h i n t h e j u r i s d i c t i o n o f a S t a t e , a l i e n s w o u l d , i n a d d i t i o n ,
enjoy t h e p r o t e c t i o n o f i n t e r n a t i o n a l law. Aside f r o m a f e e l i n g t h a t t h e t e r m
" g e n e r a l p r i n c i p l e s o f i n t e r n a t i o n a l l a w " was n o t s u f f i c i e n t l y p r e c i s e , o t h e r
members t h o u g h t t h a t t h e c l a u s e m i g h t i n p r a c t i c e j u s t i f y i n t e r f e r e n c e i n t h e
a c t i v i t i e s o f S t a t e s i n t h e name o f a l l e g e d i n t e r n a t i o n a l s t a n d a r d s . Moreover, t h e
c l a u s e w o u l d be i n c o m p a t i b l e w i t h t h e r i g h t o f p e o p l e s t o s e l f - d e t e r m i n a t i o n .
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DOCUMENTATION

Organ and Article

session Records o f d i s c u s s i o n Other documents number

ESC ( X I ) E/AC.7/SR.LU8 E/C2/254/Add.l

GA ( V ) 3rd Com., 291st mtg., A/C.3/534, p a r a . 6 ( e )

p a r a s . 18, 34; 297th
mtg., p a r a s . 27-28;
304th mtg., p a r a . 46;
3l4th mtg., p a r a . 7

CHR ( V I I ) E/CN.4/SR.230-232 E/CN.4/528, p a r a s . 35-37; 599;

60; 6 l 4 ; ESC ( X I I I ) , suppl.10,
p a r a . 49 and annex I I

ESC ( X I I I ) E/C.2/SR.106

CHR ( V I I I ) E/CN.4/SR.302, E/CN.4/528/Add.l, p a r a . 26;

E/CN.4/L.66 and R e v . l ; L.165,
ESC ( X I V ) , s u p p l . 4 , p a r a s . l 4 4 -
149

CHR ( I X ) ESC ( X V I ) , s u p p l . 8 , annex I I ,

part A

CHR ( X ) E/CN.4/sR.4i3-4i8 E/CN.4/694/Add-3; 702, p . 3 2 ;

E/CN.4/L.31 and R e v . l ; L . 3 l 4 ,
L.316-319; L.320 and C o r r . l ;
L.321-323; ESC ( X V I I I ) ,
s u p p l . 1 , p a r a s . 40-71

ESC ( X V I I I ) E/AC7/SR.289;
E/C.2/SR.I45

GA ( I X ) 3rd Com., 557th mtg., A/2808, p a r a . 38

p a r a . 9; 563rd mtg.,
p a r a s , 23-25. 566th mtg.,
p a r a s . 8, 16; 568th mtg.,
p a r a . 17; 570th mtg.,
p a r a s . 12, 43; 571st mtg.,
p a r a . 19; 573rd mtg.,
p a r a s . 8, 26; 576th mtg.,
p a r a s . 1, 18-19; 58O mtg.,
p a r a . 15
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CHAPTER V I I

MEASURES OF IMPLEMENTATION: C I V I L AND POLITICAL RIGHTS

( P a r t I V , a r t i c l e s 27-48, and P a r t V, a r t i c l e s 49-50,

o f t h e D r a f t Covenant on C i v i l and P o l i t i c a l R i g h t s )

Table o f Contents

Paragraphs

A r t i c l e 27 - E s t a b l i s h m e n t and c o m p o s i t i o n s o f t h e human r i g h t s 1-6

committee
Name o f t h e committee
Size o f t h e committee
Q u a l i f i c a t i o n s o f members o f t h e committee

A r t i c l e 28 - N o m i n a t i o n o f c a n d i d a t e s f o r e l e c t i o n t o t h e committee 7-

A r t i c l e 29 - E l e c t i o n o f members o f t h e committee 11-17

A r t i c l e 30 - C o n d i t i o n s r e l a t i n g t o t h e e l e c t i o n o f t h e members o f 18-22
the committee

A r t i c l e 31 - Term o f o f f i c e o f members o f t h e committee 23-26

A r t i c l e 32 - Casual v a c a n c i e s 27-29

A r t i c l e 33 - F i l l i n g o f c a s u a l v a c a n c i e s 30-32

A r t i c l e 34 - P a r t i c i p a t i o n o f members i n cases b e f o r e t h e committee 33-36

A r t i c l e 35 - Emoluments o f members o f t h e committee 37-39

A r t i c l e 36 - S e c r e t a r y and s t a f f o f t h e committee 40-44

Appointment o f t h e s e c r e t a r y
S t a f f and f a c i l i t i e s f o r t h e committee

A r t i c l e 37 - Meetings o f t h e committee 45-47

A r t i c l e 38 - Solemn d e c l a r a t i o n b y members o f t h e committee 48

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Table o f Contents (cont'd)

Paragraphs

A r t i c l e 39 - E l e c t i o n o f o f f i c e r s and r u l e s o f procedure 49-58

Election of officers
Method o f v o t i n g
O r a l and w r i t t e n submissions b y S t a t e s t o t h e committee
P a r t i c i p a t i o n o f a national o f a State i n a dispute before
the committee

A r t i c l e ho - J u r i s d i c t i o n o f t h e human r i g h t s committee 59-98

I n i t i a t i o n o f proceedings
Complaints b y S t a t e s and t h e r i g h t o f p e t i t i o n
P r o p o s a l s on t h e r i g h t o f p e t i t i o n and o t h e r means o f
i n i t i a t i n g proceedings
P r o t o c o l on t h e r i g h t o f i n d i v i d u a l s , groups a n d
non-governmental o r g a n i z a t i o n s t o p e t i t i o n
H i g h Commissioner ( A t t o r n e y - G e n e r a l ) f o r Human R i g h t s
C o l l e c t i o n o f i n f o r m a t i o n and a c t i o n thereon b y t h e
committee
Provisions concerning f u t u r e extension o f t h e f u n c t i o n s o f
the committee
Matters r e l a t i n g t o the r i g h t o f self-determination
S e r i o u s and u r g e n t cases

A r t i c l e hi - E x h a u s t i o n o f domestic remedies 99-101

A r t i c l e h2 - O b t a i n i n g o f i n f o r m a t i o n f r o m S t a t e s 102-107
Obtaining o f i n f o r m a t i o n from States
Inquiries cr investigations

A r t i c l e 43 - C o n s i d e r a t i o n b y and r e p o r t o f t h e committee on a 108-113

matter referred t o i t
F u n c t i o n s o f t h e committee
Reports o f t h e committee

A r t i c l e 44 - A d v i s o r y o p i n i o n s f r o m t h e I n t e r n a t i o n a l C o u r t o f 114-119
Justice

A r t i c l e 45 - Report o f t h e committee t o t h e General Assembly 120-122

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Table o f Contents ( c o n t ' d )

Paragraphs

A r t i c l e 46 - Recourse t o t h e I n t e r n a t i o n a l C o u r t o f J u s t i c e i n 123-127
the e v e n t o f t h e f a i l u r e o f t h e committee t o r e a c h
a solution

A r t i c l e 4-7 - J u r i s d i c t i o n o f t h e I n t e r n a t i o n a l C o u r t o f J u s t i c e 128-132

A r t i c l e 48 - I m p l e m e n t a t i o n o f a r t i c l e 1 on s e l f - d e t e r m i n a t i o n 133-142
Reports on a r t i c l e 1
Determination of the p o l i t i c a l status o f non-self-governing
territories

P r i v i l e g e s and i m m u n i t i e s o f members o f t h e committee l43-l46

The f u n c t i o n s o f t h e committee i n r e l a t i o n t o s p e c i a l procedures 147-157

e s t a b l i s h e d b y t h e U n i t e d N a t i o n s , s p e c i a l i z e d agencies and
regional organizations

Requests t o t h e committee f o r i n f o r m a t i o n , a s s i s t a n c e and a d v i c e . 158-l60

A r t i c l e 49 - R e p o r t i n g procedure 161-178
The i n c l u s i o n o f a r e p o r t i n g procedure i n t h e covenant
The s p e c i f i c procedure i n c l u d e d i n t h e covenant
The r e f e r e n c e t o a r t i c l e 22, paragraph 4, o f t h e covenant
The d e t e r m i n a t i o n o f t h e organ t o w h i c h r e p o r t s s h o u l d be s e n t
The r e f e r e n c e t o s p e c i a l i z e d agencies

A r t i c l e 50 - R e l a t i o n s between t h e U n i t e d N a t i o n s and s p e c i a l i z e d 179-183

agencies
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ARTICLE 27

E s t a b l i s h m e n t and c o m p o s i t i o n o f t h e human r i g h t s committee

1. There s h a l l be e s t a b l i s h e d a Human R i g h t s Committee

( h e r e i n a f t e r r e f e r r e d t o as " t h e Committee"). I t shall consist
o f n i n e members and s h a l l c a r r y o u t t h e f u n c t i o n s h e r e i n a f t e r
provided.

2. The Committee s h a l l be composed o f n a t i o n a l s o f t h e S t a t e s

P a r t i e s t o t h e Covenant who s h a l l be persons o f h i g h m o r a l
s t a n d i n g and r e c o g n i z e d competence i n t h e f i e l d o f human r i g h t s ,
consideration being given t o the usefulness o f t h e p a r t i c i p a t i o n
o f some persons h a v i n g a j u d i c i a l o r l e g a l e x p e r i e n c e .

3. The members o f t h e Committee s h a l l be e l e c t e d and s h a l l

serve i n t h e i r p e r s o n a l c a p a c i t y .

1. D i s c u s s i o n on t h i s a r t i c l e r e l a t e d c h i e f l y t o t h e number o f members o f t h e
committee and t o t h e n e c e s s i t y o f r e f e r r i n g i n paragraph 2 t o p a r t i c u l a r
q u a l i f i c a t i o n s , e s p e c i a l l y t o j u d i c i a l and l e g a l e x p e r i e n c e . Paragraph 3 was
i n c l u d e d t o emphasize t h e n o n - p o l i t i c a l n a t u r e o f t h e committee and t h e
independency o f i t s members, who were t o be e l e c t e d t o serve i n t h e i r p e r s o n a l
c a p a c i t i e s and n o t as r e p r e s e n t a t i v e s o f governments.

Name o f t h e committee-^

2. A l t h o u g h t h e r e were no p r o p o s a l s o r d e c i s i o n s f o r an a l t e r n a t i v e t o t h e name
"human r i g h t s committee", o t h e r names were suggested, and i t was t h o u g h t t h a t t h e
m a t t e r s h o u l d be d i s c u s s e d b e f o r e t h e f i n a l a d o p t i o n o f t h e covenant, so t h a t
a more a p p r o p r i a t e d e s i g n a t i o n m i g h t be adopted i n c o n f o r m i t y w i t h t h e d i g n i t y
and importance o f t h e proposed body. D e s i g n a t i o n s such as "human r i g h t s
c o u n c i l " and "human r i g h t s committee" were s a i d t o be somewhat c o n f u s i n g i n t h e
l i g h t o f t h e names o f t h e v a r i o u s organs o f t h e U n i t e d N a t i o n s ; t h e y might a l s o
give r i s e t o undesirable notions of hierarchy. Suggestions l i k e "human r i g h t s
t r i b u n a l " o r "human r i g h t s forum" were t h o u g h t o f as i n a p p r o p r i a t e f o r a body which
was n o t o f a j u d i c i a l o r arbitrtive c h a r a c t e r , n o r c o n f i n e d t o d e l i b e r a t i v e
functions. Other suggestions were "human r i g h t s board" and " h i g h commission
f o r human r i g h t s " .

1/ E/CN.ySR.19.0, 2 , 212, 214, 215; GA ( V ) , 3rd Com., 301st mtg.

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2/
Size o f t h e committee'

3. The o r i g i n a l p r o v i s i o n f o r seven members o f t h e committee was changed t o

n i n e and t h e r e a f t e r a p r o p o s a l t o r e v e r t t o seven was rejected. I t was s t a t e d
t h a t i t was n e c e s s a r y t o have as l a r g e a number as p o s s i b l e , s i n c e t h e committee
would have many t a s k s t o p e r f o r m , i n c l u d i n g f a c t - f i n d i n g w h i c h would r e q u i r e a
l a r g e r number t h a n c o n c i l i a t i o n p r o p e r . There m i g h t a l s o be some d i v i s i o n o f
work among t h e members o f t h e committee, and w o r k i n g groups and sub-committees
m i g h t be e s t a b l i s h e d . Moreover, i t would be i n a d v i s a b l e t o l e a v e decisions
a f f e c t i n g t h e a c t i o n s o f S t a t e s t o a m a j o r i t y o f a s m a l l committee, w i t h p r o v i s i o n
3/
f o r a quorum o f o n l y f i v e members.-' A s m a l l e r number would a l s o make i t
d i f f i c u l t t o give consideration t o equitable geographical d i s t r i b u t i o n and to
t h e r e p r e s e n t a t i o n o f t h e v a r i o u s forms o f c i v i l i z a t i o n , as p r o v i d e d i n a r t i c l e 30,
paragraph 2. On t h e o t h e r hand, i t was contended t h a t e x p e r i e n c e showed t h a t
t h e d e l i c a t e t a s k o f c o n c i l i a t i o n was b e s t p e r f o r m e d b y a s m a l l body, and that,
so l o n g as t h e f u n c t i o n s o f t h e committee c o n t i n u e d t o be those d e f i n e d b y t h e
e x i s t i n g a r t i c l e s , i t was n o t n e c e s s a r y t o have more t h a n seven members a t t h e
most. Another p o i n t o f v i e w was t h a t the number s h o u l d be s u f f i c i e n t l y l a r g e so
t h a t , i n t h e event t h a t n a t i o n a l s o f a l l the f i v e permanent members o f t h e S e c u r i t y
C o u n c i l were e l e c t e d , t h e r e would s t i l l be p l a c e s f o r r e p r e s e n t a t i o n o f t h e other
c o u n t r i e s , b u t i t was p o i n t e d o u t t h a t t h e r e was no q u e s t i o n o f r e p r e s e n t a t i o n
o f S t a t e s b u t o n l y o f members s e r v i n g i n t h e i r i n d i v i d u a l c a p a c i t i e s .
Q u a l i f i c a t i o n s o f members o f t h e committee-^

4. There was some d i s c u s s i o n concerning t h a t p a r t o f t h e second paragraph

which provides t h a t c o n s i d e r a t i o n s h o u l d be g i v e n t o the u s e f u l n e s s of the

2/ E/CN.4/SR.2l4, 215, 344, 346; E/CN.4/530, p a r a . 25, 530/Add.l, p a r a , ih,

366, L.226 ( C o r r . l , French o n l y ) ; E/AC.7/SR.I5O, ESC ( X V I ) , s u p p l . 8 ,
paras.89-91, and annex I I I , p a r a s . 56-59, GA ( v ) , 3rd Com., 301st mtg.;
GA ( V I ) , 3rd Com., 371st mtg.
3/ See a r t i c l e 39, paragraph 2 ( a ) , w h i c h f o r a membership o f n i n e , provides
f o r a quorum o f seven.
4/ E/CW.U/SR.I87, 211, 2l4, 215, 3^6, E/CN.4/474, a r t . l , 530, paras. 27-29,
56O, 568; E/AC.7/SR.150, ESC ( X V I ) , s u p p l . 8 , p a r a s . 92-95 J GA ( V ) , 3rd Com.,
300th and 301st mtgs.
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p a r t i c i p a t i o n o f some persons h a v i n g a j u d i c i a l o r l e g a l e x p e r i e n c e . This

phrase was i n c l u d e d as a compromise t e x t , p r o p o s a l s t e n d i n g t o i n c o r p o r a t e
the i d e a i n more d i r e c t f o r m h a v i n g been r e j e c t e d . The main argument a g a i n s t
the i n c l u s i o n o f such phrases was t h a t i f r e f e r e n c e were t o be made t o
p a r t i c u l a r q u a l i f i c a t i o n s , t h e n n o t o n l y s h o u l d enumeration o f other q u a l i f i c a t i '
be i n c l u d e d , b u t s t r e s s s h o u l d be l a i d n o t so much on j u d i c i a l qualifications
as on o t h e r c a p a b i l i t i e s which would emphasize t h e p a r t i c u l a r familiarity
w i t h q u e s t i o n s r e l a t i n g t o human r i g h t s . I t was a l s o s a i d t o be necessary
t o a v o i d t h e i m p r e s s i o n t h a t t h e i n t e n t i o n was t o s e t up a j u d i c i a l organ
when i n f a c t t h a t was n o t t h e case Moreover, persons o f h i g h m o r a l s t a n d i n g
and r e c o g n i z e d competence i n t h e f i e l d o f human r i g h t s would i n e v i t a b l y i n c l u d e
persons w i t h j u d i c i a l and l e g a l q u a l i f i c a t i o n s and S t a t e s , when c o n s i d e r i n g
candidates f o r n o m i n a t i o n , were h a r d l y l i k e l y t o o v e r l o o k t h e n o m i n a t i o n o f
jurists.
5- I n s u p p o r t o f some r e f e r e n c e t o j u d i c i a l and l e g a l q u a l i f i c a t i o n s , i t was
emphasized t h a t , besides c o l l e c t i o n o f i n f o r m a t i o n , a s c e r t a i n i n g o f f a c t s and
making a v a i l a b l e i t s good o f f i c e s , t h e committee would be concerned most o f t e n
w i t h m a t t e r s i n v o l v i n g v i o l a t i o n s o f l e g a l p r o v i s i o n s and, i n such cases, t h e
committee w o u l d have t o i n v e s t i g a t e and s e t t l e d i s p u t e s , f o r which legal
e x p e r i e n c e w o u l d be i n v a l u a b l e . Another view was t h a t i f an element o f
j u d i c i a l e x p e r i e n c e was t h o u g h t d e s i r a b l e and i n d i s p e n s a b l e , i t would be b e t t e r
t o r e q u i r e t h a t a d e f i n i t e p r o p o r t i o n o f t h e persons e l e c t e d s h o u l d possess
such e x p e r i e n c e . Other m a i n t a i n e d t h a t i n o r d e r t o a v o i d any k i n d o f
m i s u n d e r s t a n d i n g , i t would be b e t t e r t o have a paragraph which d i d n o t make
r e f e r e n c e t o any p a r t i c u l a r qualification.
6. I t was g e n e r a l l y r e c o g n i z e d , however, t h a t t h e scope o f appointments t o
the committee s h o u l d i n c l u d e a wide range o f p e r s o n s , such as statesmen,
h i s t o r i a n s , philosophers, j u r i s t s , etc.; t h e t e x t s i m p l y drew t h e a t t e n t i o n
t o t h e u s e f u l n e s s o f j u d i c i a l and l e g a l e x p e r i e n c e , and t a k e n as a whole, t h e
paragraph w o u l d l e a v e t h e I n t e r n a t i o n a l Court o f J u s t i c e s u f f i c i e n t latitude
i n t h e c h o i c e o f membership f o r t h e committee.
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DOCUMENTATION

Organ and Records o f Article

session discussion Other documents number

CHR ( V I ) E/CN.4/SR.168, 177, E/CN.4/474/art.1; ESC ( X l ) ,

I87, 190 s u p p l . 5 , annex I , a r t . 19

ESC ( X I ) E/AC.7/SR.I5O E/L.68, p a r a . 105 19

GA ( V ) 3rd Comm. , 300-301st Annexes, a . i . 63, / 3 / 5 3 4 , p a r a . 20 19

mtgs.

CHR ( V I I ) E/CN.4/SR.209, 210, E/CN.4/53, p a r a s . 25-29, 56O, 566, 568; 19

211, 212, 214, 215 ESC ( X I I I ) , s u p p l . 9 , annex I , a r t . 33

GA ( V I ) 3rd Com, 371st mtg. 33

CHR ( V I I I ) E/CN.4/530/Add.l, p a r a . 1 4 33

CHR ( I X ) E/CN.U/SR-344, 3 4 6 , E/CN.4/L.226 ( C o r r . l , French o n l y ) , 33

409 264; ESC ( X V I ) , s u p p l . 8, paras. 89-95,
annex I , a r t . 27, and annex I I I ,
paras. 56-59
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ARTICLE 28

Nomination o f c a n d i d a t e s f o r e l e c t i o n t o the committee

1. The members o f t h e Committee s h a l l be e l e c t e d f r o m

a l i s t o f persons p o s s e s s i n g t h e q u a l i f i c a t i o n s p r e s c r i b e d
i n a r t i c l e 27 and nominated f o r t h e purpose by t h e
S t a t e s P a r t i e s t o t h e Covenant.

2. Each S t a t e P a r t y t o t h e Covenant s h a l l nominate a t

l e a s t two and n o t more t h a n f o u r persons. These persons
may be n a t i o n a l s o f t h e n o m i n a t i n g S t a t e o r o f any o t h e r
S t a t e P a r t y t o t h e Covenant.

3- A person s h a l l be e l i g i b l e t o be renominated.

7. Paragraph 1 o f t h i s a r t i c l e d i d n o t g i v e r i s e t o much d i s c u s s i o n . With

r e s p e c t t o paragraph 2, a s u g g e s t i o n was made t h a t , w h i l e ' t h e maximum number
o f persons each S t a t e p a r t y m i g h t nominate s h o u l d be n o t more t h a n f o u r
p e r s o n s , t h e minimum number s h o u l d n o t be s p e c i f i e d . T h i s s u g g e s t i o n was
n o t p r e s s e d i n t h e l i g h t o f t h e o b s e r v a t i o n t h a t t h e choice o f c a n d i d a t e s
might be unduly r e s t r i c t e d i f s e v e r a l S t a t e s s h o u l d j o i n t l y nominate a
candidate.
8. Paragraph 3 p r o v i d e s s i m p l y t h a t "a person s h a l l be e l i g i b l e f o r
renomination". I n connexion w i t h t h i s paragraph t h e r e was a d i s c u s s i o n on
t h e q u e s t i o n o f e s t a b l i s h i n g a permanent o r semi-permanent p a n e l o f n o m i n a t i o n s .
I n a p r e v i o u s t e x t o f t h i s paragraph a sentence was i n c l u d e d w h i c h s p e c i f i e d
t h a t "nominations s h a l l remain v a l i d u n t i l new n o m i n a t i o n s a r e made f o r t h e
purpose o f t h e n e x t e l e c t i o n " . T h i s was s u b j e c t t o a p r o v i s i o n o f a n o t h e r
a r t i c l e which s t i p u l a t e d t h a t S t a t e s p a r t i e s were e n t i t l e d , " i f t h e y have n o t
a l r e a d y s u b m i t t e d t h e i r n o m i n a t i o n s " , t o submit them w i t h i n t h e s p e c i f i e d p e r i o d
f o r each r e g u l a r e l e c t i o n . From t h e d i s c u s s i o n i t appeared t h a t t h e i n t e n t i o n
was t h a t nominations would r e m a i n v a l i d f o r t h e r e g u l a r e l e c t i o n u n l e s s new
nominations were made. Thus, t h e r e would be a k i n d o f c o n t i n u i n g p a n e l o f
n o m i n a t i o n s a l t h o u g h S t a t e s would be f r e e t o submit c o m p l e t e l y new n o m i n a t i o n s
for a regular election. A t t h e same t i m e , i t was i n t e n d e d t h a t c a s u a l
vacancies would be f i l l e d from t h e c o n t i n u i n g p a n e l . Moreover, a S t a t e p a r t y
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t o a case b e f o r e t h e Committee, w h i c h d i d n o t i n c l u d e one o f i t s n a t i o n a l s ,

c o u l d d e s i g n a t e a n a t i o n a l f r o m t h e p a n e l as a member. A provision t o this
e f f e c t , however, i s no l o n g e r i n c l u d e d i n t h e d r a f t covenant.^
9 The system o u t l i n e d above was s u p p o r t e d i n p a r t i c u l a r as p r o v i d i n g a
measure o f c o n t i n u i t y and permanence, and t h e r e b y c o n t r i b u t i n g a s t a b i l i z i n g
f a c t o r and e n s u r i n g t h e e l e c t i o n o f independent p e r s o n s . I t was c r i t i c i z e d b y
t h o s e who f a v o u r e d a more permanent p a n e l on t h e grounds t h a t i t would p e r m i t
s h o r t - t e r m n o m i n a t i o n s and c o n s t a n t changes w h i c h w o u l d make t h e system u n w i e l d y
and t h a t governments m i g h t be g u i d e d b y t h e i r own i n t e r e s t s o r b y p o l i t i c a l
c o n s i d e r a t i o n s i n changing t h e l i s t o f nominees. I t was a l s o opposed b y t h o s e
who f e l t t h a t i t d i d n o t t a k e account o f t h e f a c t t h a t a c a n d i d a t e on t h e o l d
l i s t m i g h t no l o n g e r be a v a i l a b l e o r t h a t t h e r e m i g h t be good reason f o r p u t t i n g
f o r w a r d new names. Moreover, as new n o m i n a t i o n s were n o t e x c l u d e d , i t was more
a p p r o p r i a t e t o f o l l o w t h e u s u a l p r o c e d u r e , common i n t h e U n i t e d N a t i o n s and
o t h e r i n t e r n a t i o n a l p r a c t i c e , whereby new n o m i n a t i o n s were r e q u i r e d f o r each
election. The l a t t e r view was a c c e p t e d and t h e passage r e l a t i n g t o t h e
c o n t i n u i n g p a n e l was d e l e t e d f r o m p a r a g r a p h 3

10. The p r e s e n t p r o c e d u r e under a r t i c l e s 28 and 29 envisages t h a t , w i t h t h e

e x c e p t i o n o f e l e c t i o n s t o f i l l c a s u a l v a c a n c i e s , new n o m i n a t i o n s a r e t o be made
f o r every e l e c t i o n . Even i n t h e case o f e l e c t i o n s t o f i l l casual vacancies, i t
was suggested t h a t t h e p r i n c i p l e o f new n o m i n a t i o n s s h o u l d now a p p l y s i n c e t h e
i d e a o f a c o n t i n u i n g p a n e l was r e j e c t e d . ^

5/ See under a r t i c l e 39
6/ See under a r t i c l e 33.
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DOCUMENTATION

Organ and Records o f Article

session discussion Other documents number

CHR ( V I ) E/CN.SR.188, 200 E/CN.4/44, a r t . 2; ESC ( X l ) ,

S u p p l . 5, annex I , a r t . 20

ESC ( X I ) E/L.68, p a r a s . I06-IO8 20

GA (V) 3rd Com., 300th mtg. 20

CHR ( V I I ) E/CN.4/SR.2l4, 215 E/CN.V530, p a r a s . 26 and 31-33, 20

560/Rev.l; ESC ( X I I l ) ,
S u p p l . 9) annex I , a r t . 34

CHR ( I X ) E/CN.ySR.346, 351, E/CN.4/675, p a r a . 14, L.228, 229, 34

352, h09 243, 264; ESC ( X V I ) , S u p p l . 8,
annex I , a r t . 28, a n d annex I I I ,
p a r a s . 60-64
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ARTICLE 29

E l e c t i o n o f members o f t h e committee

1. A t l e a s t t h r e e months b e f o r e t h e d a t e o f each e l e c t i o n
o f t h e Committee, o t h e r t h a n a n e l e c t i o n t o f i l l a vacancy
d e c l a r e d i n accordance w i t h a r t i c l e 35, t h e S e c r e t a r y - G e n e r a l
o f t h e U n i t e d N a t i o n s s h a l l address a w r i t t e n r e q u e s t t o t h e
S t a t e s P a r t i e s t o t h e Covenant i n v i t i n g them t o submit t h e i r
n o m i n a t i o n s w i t h i n two months.

2. The S e c r e t a r y - G e n e r a l o f t h e U n i t e d N a t i o n s s h a l l
p r e p a r e a l i s t i n a l p h a b e t i c a l o r d e r o f a l l t h e persons t h u s
nominated, and s h a l l submit i t t o t h e I n t e r n a t i o n a l C o u r t o f
J u s t i c e and t o t h e S t a t e s P a r t i e s t o t h e Covenant.

5. The S e c r e t a r y - G e n e r a l o f t h e U n i t e d N a t i o n s s h a l l r e q u e s t
the I n t e r n a t i o n a l Court o f J u s t i c e t o f i x t h e time o f e l e c t i o n s
f o r members o f t h e Committee and t o e l e c t such members f r o m
t h e l i s t r e f e r r e d t o i n t h e p r e c e d i n g p a r a g r a p h and i n
accordance w i t h t h e c o n d i t i o n s s e t o u t i n t h i s p a r t o f t h e
Covenant.

11. The p r e s e n t t e x t o f p a r a g r a p h 1 i s based upon t h e p r i n c i p l e t h a t new

n o m i n a t i o n s a r e t o be s u b m i t t e d each t i m e t h a t an e l e c t i o n o f t h e committee i s
t o be h e l d , w i t h t h e e x c e p t i o n o f e l e c t i o n s t o f i l l c a s u a l vacancies w h i c h i s
d e a l t w i t h i n a r t i c l e 53 The p r e v i o u s t e x t o f t h i s p a r a g r a p h was d r a f t e d i n
7/
the l i g h t o f t h e p r o v i s i o n envisaging a continuing panel o f nominations.
12. V a r i o u s views were advanced c o n c e r n i n g t h e q u e s t i o n o f what was t h e most
competent and a p p r o p r i a t e body t o e l e c t t h e members o f t h e committee. Proposals
were made t h a t t h e committee s h o u l d be e l e c t e d b y t h e S t a t e s p a r t i e s t o t h e
covenant o r b y t h e I n t e r n a t i o n a l C o u r t o f J u s t i c e , o r b y t h e General Assembly o f
the United Nations. The p r e s e n t t e x t e n t r u s t s t h e e l e c t i o n t o t h e
I n t e r n a t i o n a l Court o f J u s t i c e . A previous t e x t provided f o r e l e c t i o n by the
S t a t e s p a r t i e s t o t h e covenant. A p r o p o s a l f o r e l e c t i o n o f t h e committee b y
t h e General Assembly was r e j e c t e d .
13. Those i n f a v o u r o f t h e p r o p o s a l t h a t t h e committee s h o u l d be e l e c t e d b y t h e
S t a t e s p a r t i e s t o t h e covenant were o f t h e o p i n i o n t h a t o n l y t h o s e S t a t e s w h i c h
had r a t i f i e d o r acceded t o t h e covenant s h o u l d have t h e r i g h t n o t o n l y t o

7/ See under a r t i c l e 28.

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nominate c a n d i d a t e s h u t a l s o t o e l e c t members o f t h e committee. Since a f a c t

f i n d i n g and c o n c i l i a t i o n committee, and n o t a c o u r t , was t o be s e t up, i t was
u n d e s i r a b l e t o overemphasize any j u d i c i a l aspects o f t h e competence o f t h e
committee b y e n t r u s t i n g t h e e l e c t i o n t o t h e I n t e r n a t i o n a l C o u r t o f J u s t i c e , and
i t was d o u b t f u l whether t h e C o u r t c o u l d p e r f o r m a t a s k w h i c h was a l i e n t o i t s
functions. I t w o u l d a l s o be unwise t o r e q u e s t t h e G e n e r a l Assembly t o e l e c t
the committee s i n c e t h a t organ w o u l d i n c l u d e S t a t e s w h i c h w o u l d n o t be p a r t i e s t o
the covenant and w o u l d t h e r e f o r e have no r i g h t s o r o b l i g a t i o n s t h e r e u n d e r .
Ik. I t was f e l t , however, t h a t i t w o u l d be unwise t o l e a v e t h e f i n a l c h o i c e o f
the members o f t h e committee t o t h e S t a t e s p a r t i e s a l o n e . The r i g h t s o f S t a t e s
p a r t i e s were s a f e g u a r d e d because t h e c h o i c e w o u l d he r e s t r i c t e d t o t h e i r n a t i o n a l s
nominated b y t h o s e S t a t e s themselves. I t was contended t h a t e l e c t i o n s s h o u l d n o t
t a k e p l a c e i n an e s s e n t i a l l y p o l i t i c a l atmosphere o f a m e e t i n g o f r e p r e s e n t a t i v e s
of States. I t was most i m p o r t a n t t h a t t h e committee s h o u l d command t h e
c o n f i d e n c e o f t h e i n d i v i d u a l v i c t i m s o f i n f r a c t i o n s o f t h e covenant. Election
b y t h e C o u r t , i t was argued, would guarantee o b j e c t i v i t y and i m p a r t i a l i t y and
c o n t r i b u t e t o t h e p r e s t i g e and importance o f t h e committee. The C o u r t was t h e
h i g h e s t n o n - p o l i t i c a l organ o f t h e U n i t e d N a t i o n s , and t h e r e c o u l d be no q u e s t i o n
o f i t s independence.
15. A n o t h e r view was t h a t e l e c t i o n s o f t h e members o f t h e committee s h o u l d be
c a r r i e d o u t b y a r e p r e s e n t a t i v e body o f a u n i v e r s a l c h a r a c t e r , such as t h e
G e n e r a l Assembly, rather than by the States p a r t i e s o r t h e Court, since t h e
p r o m o t i o n o f and r e s p e c t f o r human r i g h t s was a c o l l e c t i v e r e s p o n s i b i l i t y o f t h e
United Nations. There was no q u e s t i o n about t h e i m p a r t i a l i t y o f t h e
G e n e r a l Assembly, w h i c h e l e c t e d members o f t h e p r i n c i p a l organs o f t h e
U n i t e d N a t i o n s , and a l s o - t o g e t h e r w i t h t h e S e c u r i t y C o u n c i l - t h e judges o f
the I n t e r n a t i o n a l Court o f J u s t i c e . T h i s p r o c e d u r e was opposed, however, on
the grounds t h a t c o n s i d e r a t i o n s o f u n i v e r s a l i t y and i m p a r t i a l i t y were t a k e n f u l l y
i n t o account when i t was d e c i d e d t h a t e l e c t i o n s s h o u l d n o t be t h e monopoly o f a
group o f S t a t e s , however d i r e c t l y i n t e r e s t e d , h u t s h o u l d be e n t r u s t e d t o t h e
Court, The C o u r t was a l s o more removed f r o m p o l i t i c a l c o n s i d e r a t i o n s t h a n t h e
G e n e r a l Assembly.
16. Other s u g g e s t i o n s were t h a t t h e method o f e l e c t i o n m i g h t be t h e same as
t h a t f o r t h e e l e c t i o n o f t h e judges o f t h e I n t e r n a t i o n a l C o u r t o f J u s t i c e o r
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o f t h e members o f t h e I n t e r n a t i o n a l Law Commission, o r t h a t t h e committee s h o u l d

he e l e c t e d j o i n t l y t h e General Assembly and t h e Economic and S o c i a l C o u n c i l .
17. D u r i n g t h e d i s c u s s i o n doubt was expressed whether t h e C o u r t c o u l d be l e g a l l y
e n t r u s t e d w i t h t h e t a s k o f e l e c t i o n s , and i t was even contended t h a t i t was
outside the j u r i s d i c t i o n o f t h e Court. I t was s a i d , however, t h a t a l t h o u g h
t h e r e was no l e g a l o b l i g a t i o n o r d u t y on t h e p a r t o f t h e C o u r t t o e l e c t members
o f t h e committee, t h e r e were no c o n s t i t u t i o n a l b a r r i e r s t o i t s c a r r y i n g o u t t h e
t a s k i f i t so wished. I n t h i s connexion r e f e r e n c e s were made t o t h e p r a c t i c e o f
the Permanent C o u r t o f I n t e r n a t i o n a l J u s t i c e and t h e I n t e r n a t i o n a l C o u r t o f
J u s t i c e o r t h e P r e s i d e n t o f t h e s e b o d i e s i n t h e appointment o f members o f
a r b i t r a t i o n t r i b u n a l s , c o n c i l i a t i o n commissions, and o t h e r n o m i n a t i o n s . The
o p i n i o n was a l s o expressed t h a t d i f f i c u l t i e s m i g h t a r i s e i f t h e C o u r t were t o
r e f u s e t o undertake t h e t a s k , and i t was suggested t h a t t h i s c o u l d be a v o i d e d b y
a s c e r t a i n i n g t h e views o f t h e C o u r t b e f o r e h a n d .
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DOCUMENTATION

Organ and Records o f Article

session discussion Other documents numbers

CHR (VI) E/CN.4/SR.l68, ITT, E/CN.4/474, a r t s . 3, 4, 5; E S C ( x i )

178, I87, 188, 189, S u p p l . 5, annex I , a r t s . 21, 22, 23,
200 and annex I I

ESC (XI) E/AC.7/SR.1 :91

j 150 E/L.68, p a r a s . 102, 109 21, 22,
23

GA (V) 3rd Com., 300th mtg. 21, 22,

23

CHR (Vil) E/CN.4/SR.210, 212, E/CN.4/515/Add.l5, 530, p a r a s . 34

214, 215 and 35, 552, 556, 560/Rev.l, 568;
584; ESC ( X I I I ) , Suppl.9,
p a r a s . 75-76, and annex I ,
a r t s . 35, 6, 37
ESC (XIII) E/C.2/SR.IO6

GA (VI) 3rd Com., 360th mtg. Annexes, a . i . 29, A/2112, p a r a . 30 35, 36

37

CHR (VIII) E/CN.4/530/Add.l, p a r a . 15

CHR (IX) E/CN.4/SR-343, E/CN.4/675. p a r a s . 4, 15-l6, L.227, 35, 6

344, 347, 348, 232, 264, NGO 47; ESC (XVl), 37
352, 409 Suppl.8, p a r a s . 96-100, annex I B ,
a r t . 29, and annex I I I , p a r a s . 65-74

CHR (X) E/CN.4/694/Add.6 29

GA (IX) 3rd Com., 570th and 29

571&t mtgs.
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ARTICLE 30

C o n d i t i o n s r e l a t i n g t o t h e e l e c t i o n o f t h e members o f t h e committee

1. The Committee may n o t i n c l u d e more t h a n one n a t i o n a l o f t h e

same S t a t e .

2. I n t h e e l e c t i o n o f t h e Committee c o n s i d e r a t i o n s h a l l be
g i v e n t o e q u i t a b l e g e o g r a p h i c a l d i s t r i b u t i o n o f membership
and t o t h e r e p r e s e n t a t i o n o f t h e d i f f e r e n t forms o f c i v i l i z a t i o n .

3. The quorum l a i d down i n a r t i c l e 25, p a r a g r a p h 3, o f t h e

S t a t u t e o f t h e I n t e r n a t i o n a l Court o f J u s t i c e s h a l l a p p l y f o r
the holding o f the elections.

k. The persons e l e c t e d s h a l l be t h o s e who o b t a i n t h e l a r g e s t

number o f v o t e s and an a b s o l u t e m a j o r i t y o f t h e v o t e s o f a l l
t h e members o f t h e I n t e r n a t i o n a l Court o f J u s t i c e .

l8. The debate on t h i s a r t i c l e was d i r e c t e d t o two p o i n t s : the representation

o f t h e "main" o r t h e " d i f f e r e n t " forms o f c i v i l i z a t i o n , and t h e m a j o r i t y r e q u i r e d
f o r t h e e l e c t i o n o f t h e members o f t h e committee.
19- I t was g e n e r a l l y agreed t h a t i n t h e e l e c t i o n o f t h e committee c o n s i d e r a t i o n
s h o u l d be g i v e n t o e q u i t a b l e g e o g r a p h i c a l d i s t r i b u t i o n , b u t t h e r e was some
d i s c u s s i o n as t o t h e r e p r e s e n t a t i o n o f t h e "main" o r t h e " d i f f e r e n t " forms o f
civilization. The o p i n i o n was expressed t h a t r e f e r e n c e t o "main forms o f
c i v i l i z a t i o n " , though t a k e n f r o m a r t i c l e 9 o f t h e S t a t u t e o f t h e I n t e r n a t i o n a l
Court o f J u s t i c e , i m p l i e d a c l a s s i f i c a t i o n o f c i v i l i z a t i o n i n t o p r i n c i p a l and
secondary, o r major and m i n o r , c a t e g o r i e s , w h i c h m i g h t n o t be w e l l - f o u n d e d . I t
was suggested t h a t "main forms o f c i v i l i z a t i o n " s h o u l d be changed t o " d i f f e r e n t
forms and degrees o f c i v i l i z a t i o n " . While t h e e x p r e s s i o n " d i f f e r e n t forms o f
c i v i l i z a t i o n " was c o n s i d e r e d a p p r o p r i a t e , o b j e c t i o n was r a i s e d a g a i n s t t h e
expression " d i f f e r e n t degrees o f c i v i l i z a t i o n " on t h e ground t h a t i t i m p l i e d a
h i e r a r c h y o f c u l t u r a l l e v e l s w h i c h s h o u l d n o t be i n t r o d u c e d i n t h e covenant.
20. The o p i n i o n was advanced t h a t i t was i l l o g i c a l t o i n s i s t , on t h e one
hand, t h a t members o f t h e committee s h o u l d be e l e c t e d b y an a b s o l u t e m a j o r i t y
o f t h e v o t e s o f a l l t h e f i f t e e n members o f t h e C o u r t , and t o p r o v i d e , on t h e
o t h e r hand, t h a t t h e quorum o f n i n e p r e s c r i b e d i n a r t i c l e 25, p a r a g r a p h 3, o f
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the S t a t u t e o f t h e Court s h o u l d a p p l y f o r t h e h o l d i n g o f e l e c t i o n s . This

would mean t h a t , i f o n l y a h a r e quorum was p r e s e n t , t h e e l e c t i o n o f a member
would have t o be v i r t u a l l y b y a unanimous v o t e . I t was proposed t h a t e i t h e r
the words " p r e s e n t and v o t i n g " o r " p r e s e n t " s h o u l d be added t o t h e end o f
p a r a g r a p h 4. The l a t t e r w o r d , w h i c h f o l l o w e d t h e p r o v i s i o n o f a r t i c l e 55>
p a r a g r a p h 1, o f t h e S t a t u t e o f t h e C o u r t , was p r e f e r r e d , s i n c e i t would
a v o i d any a m b i g u i t y c o n c e r n i n g t h e i n t e r p r e t a t i o n o f a b s t e n t i o n s . Another
s u g g e s t i o n was t h a t i t m i g h t be b e t t e r t o s p e c i f y t h e number o f a f f i r m a t i v e
v o t e s r e q u i r e d f o r t h e e l e c t i o n o f a member o f t h e committee.
21. Those s u p p o r t i n g t h e p r e s e n t t e x t o f p a r a g r a p h 4 argued t h a t t h e
r e q u i r e m e n t mentioned i n t h a t p a r a g r a p h would be i n k e e p i n g w i t h t h e
Importance o f t h e e l e c t i o n s t o t h e committee.
I t was a p p r o p r i a t e t h a t members s h o u l d be e l e c t e d b y as l a r g e a m a j o r i t y
as p o s s i b l e .
22. O r i g i n a l l y , i t had been c o n t e m p l a t e d t h a t members o f t h e committee
were t o be e l e c t e d b y a m a j o r i t y o f t h e r e p r e s e n t a t i v e s o f t h e S t a t e s p a r t i e s
p r e s e n t and v o t i n g and t h a t a quorum f o r such e l e c t i o n was t o c o n s i s t o f
two-thirds o f t h e States p a r t i e s .

DOCUMENTATION

Organ and Records o f Article

session discussion Other documents number
CHR ( V I ) E/CNA/SR.l89, 200 E/CN.4/474, a r t . 6 , 488; ESC ( X I ) ,
s u p p l . 5 , annex I , a r t . 2 4

ESC ( X I ) E/AC.T/SR.150 E/L.68, para.110 24

CHR ( V I I ) E/CN.4/SR.215 E/CN.4/515/Add.l3, 530, para.36,

552, 556, 560/Rev.l, 57;
ESC ( X I I I ) , s u p p l . 9 , a r t . 3 8 24

CHR ( I X ) E/CN.4/SR.348, 409 E/CN.4/675, para.17, L.227, 232,

237, 264; ESC ( X V I ) , s u p p l . 8 ,
p a r a s . 101-106, annex I B,
a r t . 3 0 , and annex I I I , p a r a s . 75-
79 38
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ARTICLE 31

Term o f o f f i c e o f members o f t h e committee

1. The members o f t h e Committee s h a l l be e l e c t e d f o r a t e r m

o f f i v e y e a r s . They s h a l l be e l i g i b l e f o r r e - e l e c t i o n i f
r e n o m i n a t e d . However, t h e terms o f f i v e o f t h e members e l e c t e d
a t t h e f i r s t e l e c t i o n s h a l l e x p i r e a t t h e end o f two y e a r s ;
i m m e d i a t e l y a f t e r t h e f i r s t e l e c t i o n t h e names o f t h e s e f i v e
members s h a l l be chosen b y l o t b y t h e P r e s i d e n t o f t h e
I n t e r n a t i o n a l Court o f J u s t i c e .

2. E l e c t i o n s a t t h e e x p i r y o f o f f i c e s h a l l be h e l d i n
accordance w i t h t h e p r e c e d i n g a r t i c l e s o f t h i s p a r t o f
t h i s Covenant.

23. The p r o v i s i o n s on t h e t e r m o f o f f i c e , on t h e r o t a t i o n o f o f f i c e and

e l e c t i o n s a t t h e e x p i r y o f o f f i c e d i d n o t g i v e r i s e t o much d i s c u s s i o n .
The main q u e s t i o n d i s c u s s e d was t h e e l i g i b i l i t y o f members o f t h e committee
for r e n o m i n a t i o n and r e - e l e c t i o n .
2k. I t was advocated t h a t a r e t i r i n g member o f t h e committee s h o u l d n o t
be i m m e d i a t e l y e l i g i b l e f o r r e - e l e c t i o n , u n l e s s he was r e n o m i n a t e d by a
S t a t e o t h e r t h a n t h e S t a t e w h i c h had nominated h i m p r e v i o u s l y . Such a
p r o c e d u r e would enhance t h e independence and i m p a r t i a l i t y o f t h e members
of t h e committee. I t would a l s o g i v e g r e a t e r emphasis t o t h e p r i n c i p l e o f
e q u i t a b l e g e o g r a p h i c a l d i s t r i b u t i o n and r e p r e s e n t a t i o n o f d i f f e r e n t forms
of c i v i l i z a t i o n , and a f f o r d a g r e a t e r chance o f e l e c t i o n t o persons
nominated b y s m a l l Powers.
25. I t was t h o u g h t , however, t h a t such a p r o c e d u r e m i g h t have f a r -
r e a c h i n g consequences. I t was b e t t e r t o r e l y on t h e system o f r o t a t i o n
o f membership and on t h e good sense o f t h e I n t e r n a t i o n a l Court o f J u s t i c e .
W h i l e p e r i o d i c i n d u c t i o n s o f new persons i n t h e committee m i g h t be
d e s i r a b l e , t h e y m i g h t a l s o r e s u l t i n l a c k o f c o n t i n u i t y i n t h e work o f t h e
committee and i n t h e l o s s o f persons h a v i n g a c q u i r e d v a l u a b l e e x p e r i e n c e
and knowledge.
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2. A p r o p o s a l t o o m i t t h e r e f e r e n c e t o e l i g i b i l i t y f o r r e - e l e c t i o n and t o
add a p r o v i s i o n t h a t " c a n d i d a t e s nominated b y S t a t e s f r o m whose l i s t t h e
r e t i r i n g members have been s e l e c t e d may n o t be e l e c t e d f o r t h e succeeding
f i v e - y e a r p e r i o d a t t h e e l e c t i o n s h e l d t o f i l l s e a t s v a c a t e d b y members o f
the committee whose terms o f o f f i c e have d u l y e x p i r e d " was r e j e c t e d .

DOCUMENTATION

Organ and Records o f Article

session discussion Other documents number

CHR ( V I ) E/CN.4/SR.189 E/CN.4/44, a r t . 7 ; ESC ( X I ) ,

suppl.5, annex I , a r t . 2 5

ESC ( X I ) E/AC.7/SR.I5O 25

CHR ( V I I ) E/CN / S R . 215 E/CN.4/5, para.37, 560/Rev.l;

ESC ( X I I I ) , suppl.9, annex I ,
art.39 25

CHR ( I X ) E/CN / S R . 5^9, E/CN.4/L.227, 232, 232/Rev.i,

352, 409 24l, 264j ESC ( X V I ) , suppl.8,
p a r a s . I I 3 - I I 6 , annex I B, a r t . 3 1 ,
and annex I I I , paras.8O-83 39
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ARTICLE 32

Casual Vacancies

1 . I f , i n t h e unanimous o p i n i o n o f t h e o t h e r members, a
member o f t h e Committee has ceased t o c a r r y o u t h i s
f u n c t i o n s f o r any cause o t h e r t h a n absence o f a t e m p o r a r y
c h a r a c t e r , t h e Chairman o f t h e Committee s h a l l n o t i f y t h e
S e c r e t a r y - G e n e r a l o f t h e U n i t e d N a t i o n s who s h a l l t h e n
d e c l a r e t h e seat o f such member t o be v a c a n t .

2. I n t h e event o f t h e d e a t h o r t h e r e s i g n a t i o n o f a
member o f t h e Committee, t h e Chairman s h a l l i m m e d i a t e l y
n o t i f y t h e S e c r e t a r y - G e n e r a l o f t h e U n i t e d N a t i o n s who
s h a l l d e c l a r e t h e seat vacant f r o m t h e date o f d e a t h o r
the date on w h i c h t h e r e s i g n a t i o n t a k e s e f f e c t .

27. Previous t o the adoption o f t h e present t e x t o f t h e a r t i c l e , only

the case o f r e s i g n a t i o n had been d e a l t w i t h . The o p i n i o n was expressed,
however, t h a t vacancies m i g h t a r i s e i n c i r c u m s t a n c e s o t h e r t h a n r e s i g n a t i o n
and t h a t such circumstances ought t o be covered i f t h e committee was t o
f u n c t i o n p r o p e r l y . A c c o r d i n g l y , a p r o p o s a l was s u b m i t t e d t h a t " i f b y
reason o f d e a t h , i l l n e s s o r any o t h e r cause, o t h e r t h a n t h e absence o f a
temporary c h a r a c t e r , a member o f t h e committee ceases t o c a r r y o u t h i s
d u t i e s , t h e chairman o f t h e committee s h a l l n o t i f y the Secretary-General of
the U n i t e d N a t i o n s , who s h a l l t h e n d e c l a r e t h e seat o f such member v a c a n t " .
28. There was g e n e r a l agreement on t h e u n d e s i r a b i l i t y o f g r a n t i n g t h e
d i s c r e t i o n a r y power t o t h e chairman o f t h e committee. I t was suggested
t h a t , i f such power were t o be g r a n t e d , i t s h o u l d be v e s t e d i n t h e committee
and be s u b j e c t e i t h e r t o a v o t e o f t w o - t h i r d s o f i t s members o r a unanimous
v o t e o f a l l t h e members except t h e one concerned.
29. I t was d e c i d e d t h a t t h e q u e s t i o n s o f d e a t h and r e s i g n a t i o n s h o u l d be
d e a l t w i t h i n a separate paragraph, s i n c e v a c a n c i e s a r i s i n g o u t o f such
events were n o t dependent upon any a c t i o n o f t h e committee. Although
i l l n e s s might make a member unable t o f u l f i l h i s d u t i e s , o r m i g h t permanently
i n c a p a c i t a t e him, i t was t h o u g h t unnecessary t o make a s p e c i f i c r e f e r e n c e
to illness. Reference was made, i n t h i s connexion, t o a r t i c l e 23,
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p a r a g r a p h 3, o f t h e S t a t u t e o f t h e I n t e r n a t i o n a l C o u r t o f J u s t i c e w h i c h
made i l l n e s s a n excusable ground o f absence, and i t was contended that
the m a t t e r would be a d e q u a t e l y covered b y t h e power o f t h e committee
t o d e t e r m i n e when a member was t o be r e g a r d e d as h a v i n g ceased t o c a r r y
out h i s functions. I t was a l s o f e l t t h a t t h e i n t e r p r e t a t i o n o f t h e phrase
"absence o f a temporary c h a r a c t e r " c o u l d be l e f t t o t h e committee. Specific
p r o v i s i o n s on t h a t q u e s t i o n m i g h t be c o n s i d e r e d a r b i t r a r y and g i v e r i s e t o
practical difficulties.

DOCUMENTATION

Organ and Records o f Article

session discussion Other documents number

CHR ( V I ) E/CN.VSR.189, E/CN.VV7U, a r t . 10; ESC ( X I ) ,

200 s u p p l . 5, annex I , a r t . 28

ESC (XI) E/L.68, p a r a . 112 28

CHR ( V I I ) E/CN. V S R . 239 E/CN.4/560/Rev.l, 6l7i ESC ( X I I l ) , 28

s u p p l . 9 , annex I , a r t . 4 2

CHR ( I X ) E/CN/SR.352, E/CN.4/675, Para. 19, L.227, 232, 42

409 264; ESC ( X V I ) , s u p p l . 8,
p a r a s . 120-125, annex I B , a r t . 32,
and annex I I I , p a r a s . 95-99
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ARTICLE 33

F i l l i n g o f Casual Vacancies

1. When a vacancy i s d e c l a r e d i n accordance w i t h a r t i c l e 32

t h e S e c r e t a r y - G e n e r a l o f t h e U n i t e d N a t i o n s s h a l l n o t i f y each
S t a t e P a r t y t o t h e Covenant, w h i c h may, i f i t I s necessary,
w i t h i n one month, w i t h a view t o e l e c t i o n t o t h e v a c a n t s e a t
on t h e Committee, complete i t s l i s t o f a v a i l a b l e nominees t o
f o u r persons.

2. The S e c r e t a r y - G e n e r a l o f t h e U n i t e d N a t i o n s s h a l l p r e p a r e
a l i s t i n a l p h a b e t i c a l o r d e r o f t h e persons t h u s nominated and
s h a l l submit i t t o t h e I n t e r n a t i o n a l C o u r t o f J u s t i c e and t h e
S t a t e s P a r t i e s t o t h e Covenant. The e l e c t i o n f o r t h e vacancy
s h a l l t h e n proceed i n accordance w i t h a r t i c l e s 29 and 30.

3 A member o f t h e Committee e l e c t e d t o r e p l a c e a member

whose t e r m o f o f f i c e has n o t e x p i r e d , s h a l l h o l d o f f i c e f o r
t h e remainder o f t h a t t e r m . P r o v i d e d t h a t i f such t e r m o f
o f f i c e w i l l e x p i r e w i t h i n s i x months a f t e r d e c l a r a t i o n o f t h e
vacancy i n accordance w i t h a r t i c l e 32, no n o m i n a t i o n s h a l l be
r e q u e s t e d and no e l e c t i o n s h a l l be h e l d t o f i l l t h a t vacancy.

30. A t t h e t i m e when t h i s a r t i c l e was agreed upon t h e p r o v i s i o n s o f

a r t i c l e s 28 and 29 had n o t been completed. Under t h e p r e s e n t t e x t o f
a r t i c l e s 28, 29 and a r t i c l e 31, p a r a g r a p h 2, f o r each r e g u l a r election, i . e .
t h e f i r s t e l e c t i o n and each subsequent e l e c t i o n upon t h e e x p i r y o f o f f i c e ,
each S t a t e p a r t y s h a l l nominate a t l e a s t two and n o t more t h a n f o u r p e r s o n s .
However, i n t h e case o f a n e l e c t i o n t o f i l l a c a s u a l vacancy, under a r t i c l e 33,
each S t a t e p a r t y i s n o t r e q u e s t e d t o nominate " a t l e a s t t w o persons and n o t
more t h a n f o u r p e r s o n s " , b u t i t may, i f i t i s necessary, "complete i t s l i s t o f
a v a i l a b l e nominees t o f o u r persons".
31. T h i s procedure was based on t h e assumption t h a t t h e l i s t o f n o m i n a t i o n s f o r
the regular e l e c t i o n would remain v a l i d f o r t h e e l e c t i o n t o f i l l a c a s u a l
8/
vacancy' , except t h a t a S t a t e p a r t y m i g h t add new nominees p r o v i d e d t h a t t h e
t o t a l was n o t more t h a n f o u r , and m i g h t s u b s t i t u t e new nominees f o r p r e v i o u s
nominees who m i g h t no l o n g e r be a v a i l a b l e .

8/ See under a r t i c l e 28.

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32. I t was s u b s e q u e n t l y observed t h a t a r t i c l e 33 was n o t i n c o n f o r m i t y w i t h

a r t i c l e s 28 and 29 and i t was suggested t h a t , except f o r p a r a g r a p h 3 o f t h e
a r t i c l e , t h e r e s t s h o u l d be r e p l a c e d b y a p r o v i s i o n f o r t h e n o m i n a t i o n o f
c a n d i d a t e s t o f i l l a c a s u a l vacancy i n t h e same way as f o r t h e o r d i n a r y e l e c t i o n ,
but w i t h t h e p r o v i s o t h a t n o m i n a t i o n s s h o u l d be s u b m i t t e d b y t h e S t a t e s p a r t i e s
w i t h i n one month o f t h e r e c e i p t o f t h e r e q u e s t f o r n o m i n a t i o n s f r o m t h e
S e c r e t a r y - G e n e r a l , i n s t e a d o f t w o months as p r o v i d e d f o r i n t h e case o f r e g u l a r
elections.

DOCUMENTATION

Organ and Records o f Article

session discussicn Other documents number
CHR ( V I ) E/CN.ySR.189 E/CN.4/474, a r t . 8 ; ESC ( X l ) ,
suppl.5, annex I , a r t . 2 6

ESC ( X I ) E/L.68, p a r a . I l l 26

CHR ( V I I ) E/CN.ySR.239 E/CN.4/56O/Rev.l, 617J ESC ( X I I l ) ,

suppl.9, annex I , a r t . 4 0 26

CHR ( I X ) E/CN.4/SR.349, 351, E/CN.4/675, para.18; L.227, 242,

459 264; ESC ( X V I ) , suppl.8,
paras.117-119, annex I B , a r t . 3 3 ,
and annex I I I , paras.84-89 40

CHR ( X ) E/CN.4/694/Add.2 33
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ARTICLE 34

P a r t i c i p a t i o n o f members i n cases b e f o r e t h e Committee

1. S u b j e c t t o t h e p r o v i s i o n s o f a r t i c l e 32, a member o f t h e
Committee s h a l l r e m a i n i n o f f i c e u n t i l a successor has been
e l e c t e d . B u t i f t h e Committee has, p r i o r t o t h e e l e c t i o n o f
his successor, begun t o c o n s i d e r a case, he s h a l l c o n t i n u e t o
act i n t h a t case, and h i s successor s h a l l n o t a c t i n i t .

2. A member o f t h e Committee e l e c t e d t o f i l l a vacancy

d e c l a r e d i n accordance w i t h a r t i c l e 32 s h a l l n o t a c t i n
any case i n w h i c h h i s predecessor had a c t e d , u n l e s s t h e
quorum p r o v i d e d i n a r t i c l e 39 cannot be o b t a i n e d .

33- T h i s a r t i c l e has t h r e e f e a t u r e s . F i r s t a member o f t h e committee i s t o

r e m a i n i n o f f i c e u n t i l a successor i s e l e c t e d , except i n t h e case o f a vacancy
a r i s i n g under a r t i c l e 32, namely, as a r e s u l t o f d e a t h , r e s i g n a t i o n o r removal
from o f f i c e . Secondly, an o u t g o i n g member, and n o t h i s successor, i s t o
c o n t i n u e t o a c t i n a case begun b y t h e committee p r i o r t o t h e e l e c t i o n o f
the successor. T h i r d l y , a member e l e c t e d t o f i l l a vacancy a r i s i n g o u t o f
a r t i c l e 32 m i g h t a c t i n such a case i f t h e quorum p r o v i d e d f o r i n a r t i c l e 39
c o u l d n o t o t h e r w i s e be o b t a i n e d . D i s c u s s i o n c e n t e r e d m a i n l y on t h e second
aspect o f t h e a r t i c l e .
34. One p r o p o s a l , w h i c h was r e j e c t e d , was t h a t , i f a member ceased t o
h o l d o f f i c e when a case was p e n d i n g , t h e case s h o u l d be c o n t i n u e d b y t h e
r e m a i n i n g members o f t h e committee and t h e successor o f t h e member who had
ceased t o be a member. I n support o f t h i s proposal i t was argued t h a t o t h e r w i s e
t h e r e m i g h t be an i n d e t e r m i n a t e number o f members o f t h e committee w i t h
consequent b u d g e t a r y and o t h e r c o m p l i c a t i o n s , such as t h e d u r a t i o n o f t h e i r
o f f i c e , e s p e c i a l l y as i t would be d i f f i c u l t t o d e t e r m i n e how l o n g a case m i g h t
continue. There was a l s o no r e a s o n f o r p r e v e n t i n g new members f r o m b r i n g i n g
t h e i r knowledge and e x p e r i e n c e t o bear upon a case t h a t had a l r e a d y begun as
t h e y would be chosen f o r t h e i r s p e c i a l competence and c o u l d s t u d y t h e case.
The committee, moreover, was n o t t o be r e g a r d e d as a j u d i c i a l body. There was,
t h e r e f o r e , no need t o f o l l o w t h e p r i n c i p l e s o f A r t i c l e 13, paragraph 3, o f t h e
S t a t u t e o f t h e I n t e r n a t i o n a l C o u r t o f J u s t i c e , a c c o r d i n g t o which a member, though
r e p l a c e d , was t o f i n i s h any cases which he m i g h t have begun.
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35 The v i e w was expressed, however, t h a t t h e p r o v i s i o n c o n t a i n e d i n t h e

S t a t u t e o f t h e Court was o f g r e a t v a l u e f o r t h e committee. Although the
committee was n o t a c o u r t , i t would have f a c t - f i n d i n g f u n c t i o n s , and i t would
t h e r e f o r e he i n a d v i s a b l e t o d e p a r t f r o m t h e e x i s t i n g p r a c t i c e o f i n t e r n a t i o n a l
b o d i e s o f a j u d i c i a l or q u a s i - j u d i c i a l c h a r a c t e r under which t h e knowledge o f
t h e f a c t s o f a case a c q u i r e d b y an o u t g o i n g member was as f a r as p o s s i b l e made
use o f , and t h e danger o f a d m i t t i n g new members u n a c q u a i n t e d w i t h t h e f o r m e r
p r o c e e d i n g s d u r i n g t h e e x a m i n a t i o n o f a case was o b v i a t e d . Moreover, t h e
c o n f u s i o n w h i c h might a r i s e f r o m a change would n o t f a v o u r c o n c i l i a t i o n .
Whatever m i g h t be t h e advantages from t h e l o g i c a l or budgetary standpoint,
i t was e s s e n t i a l t o p r o v i d e f o r a guarantee o f complete freedom, which was
i n d i s p e n s a b l e t o t h e members o f t h e committee, and t o p r e v e n t any p o s s i b i l i t y
o f t h e e l e c t i o n o f members b e i n g i n f l u e n c e d b y c u r r e n t e v e n t s .
36. A n o t h e r s u g g e s t i o n was t h a t members succeeding t h o s e whose terms o f
o f f i c e had e x p i r e d s h o u l d n o t a c t i n a case which had a l r e a d y begun, b u t t h o s e
e l e c t e d t o f i l l vacancies a r i s i n g under a r t i c l e 32 s h o u l d be p e r m i t t e d t o do so,
i r r e s p e c t i v e o f whether o r n o t t h e i r p a r t i c i p a t i o n was necessary i n o r d e r t o
make a quorum.

DOCUMENTATION

Organ and Records o f Article

session discussion Other documents number
(VI) E/CN.4/SR.189 E/CN.4/474, a r t . 9 ; ESC ( X I ) ,
suppl.5, annex I , a r t . 2 7

ESC (XI) E/AC.7/SR.1I4-9 27

CHR (VII) E/CN / S R . 239 E/CN/530, paras.39-40, 556, 617;

ESC ( X I I I ) , suppl.9, annex I , a r t . 4 2 27

CHR (IX) E/CN.4/SR.352, 353, E/CN.4/L.227, 234/Rev.l, 264;

409 ESC ( X V I ) , suppl.8, paras.126.-128,
annex I B , a r t . 3 4 , and annex :I I I ,
paras.90-94 42
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ARTICLE 35

Emoluments o f t h e members o f t h e committee

The members o f t h e Committee s h a l l , w i t h t h e a p p r o v a l

of t h e General Assembly o f t h e U n i t e d N a t i o n s , r e c e i v e
emoluments f r o m U n i t e d N a t i o n s r e s o u r c e s on such terms
and c o n d i t i o n s as t h e General Assembly may decide h a v i n g
r e g a r d t o t h e importance o f t h e Ccmmittee's r e s p o n s i b i l i t i e s .

37. The p r e v i o u s d r a f t o f t h e a r t i c l e had p r o v i d e d t h a t t h e members and

t h e s e c r e t a r y o f t h e committee were t o " r e c e i v e emoluments commensurate
w i t h t h e importance and t h e r e s p o n s i b i l i t i e s o f t h e i r o f f i c e . " There
was no i n d i c a t i o n whether t h e emoluments would be d e f r a y e d b y t h e U n i t e d
N a t i o n s o r b y t h e S t a t e s p a r t i e s t o t h e covenant, a l t h o u g h t h e d i s c u s s i o n
had p o i n t e d t o t h e f o r m e r . The p r e s e n t t e x t s t i p u l a t e s t h a t t h e emolument
of t h e members o f t h e committee a r e t o be met f r o m U n i t e d N a t i o n s resources
Reference t o t h e emoluments o f t h e s e c r e t a r y o f t h e committee was o m i t t e d
because i t was c o n s i d e r e d t h a t t h e r e was no need t o p r o v i d e s e p a r a t e l y f o r
h i s emoluments s i n c e u n d e r x a r t i c l e 36 he would be e l e c t e d f r o m among t h e
h i g h o f f i c i a l s of t h e United Nations Secretariat.
38. As t o t h e q u e s t i o n o f a d v i s a b i l i t y o f u s i n g U n i t e d N a t i o n s funds f o r
t h e payment o f t h e committee members, o p i n i o n s v a r i e d . On t h e one hand,
t h e o p i n i o n was expressed t h a t t h e e s t a b l i s l m i e n t o f t h e human r i g h t s
committee was c o n t r a r y t o A r t i c l e 2. p a r a g r a p h 7 o f t h e C h a r t e r and t h a t ,
f u r t h e r , t h e s p r e a d i n g o f t h e f i n a n c i a l burden on a l l S t a t e s Members o f
t h e U n i t e d N a t i o n s , i r r e s p e c t i v e o f whether t h e y w o u l d a l l be p a r t i e s t o
t h e covenant o r n o t , w o u l d be c o n t r a r y t o t h e terms o f t h e C h a r t e r . On
t h e o t h e r hand, i t was contended t h a t t h e covenant was n o t i n t e n d e d f o r
t h e b e n e f i t o f a s m a l l group o f S t a t e s , t h a t i t s aims were t o f u r t h e r t h e
purposes o f t h e U n i t e d N a t i o n s and t o promote i n c r e a s e d i n t e r n a t i o n a l
c o l l a b o r a t i o n , and t h a t , t h e r e f o r e , t h e p r o p o s a l was e n t i r e l y i n keeping
w i t h t h e terms o f t h e C h a r t e r .
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39 The need f o r i n c l u s i o n o f such words as "commensurate w i t h t h e importance

and t h e r e s p o n s i b i l i t i e s o f t h e i r o f f i c e " o r " h a v i n g r e g a r d t o t h e importance o f
t h e committee's r e s p o n s i b i l i t i e s " was q u e s t i o n e d on t h e grounds t h a t t h e General
Assembly c o u l d be r e l i e d upon t o t a k e i n t o account t h e s p e c i a l f e a t u r e s and
c i r c u m s t a n c e s i n v o l v i n g t h e e s t a b l i s h m e n t o f t h e proposed committee. Reference
was made t o t h e f a c t t h a t a r t i c l e 33 o f t h e S t a t u t e o f t h e I n t e r n a t i o n a l Court
o f J u s t i c e c o n t a i n e d no e q u i v a l e n t p h r a s e o l o g y and s i m p l y p r o v i d e d t h a t " t h e
expenses o f t h e Court s h a l l be borne b y t h e U n i t e d N a t i o n s i n such a manner as
s h a l l be d e c i d e d b y t h e General Assembly". However, i t was f e l t t h a t some
i n d i c a t i o n s h o u l d be g i v e n t o t h e General Assembly c o n c e r n i n g t h e s p e c i a l
s i g n i f i c a n c e a t t a c h e d t o t h e e s t a b l i s h m e n t o f t h e proposed committee, which
s h o u l d n o t n e c e s s a r i l y be s u b j e c t t o t h e e x i s t i n g f i n a n c i a l r e g u l a t i o n s o f t h e
United Nations.

DOCUMENTATION

Organ and Records o f Article

session discussion Other documents number

GA ( V ) 3 r d Com., Annexes, a . i . 63, /./534, para.22

300th mtg.

CHR ( V I I ) E/CN.U/SR.215, E/CN.4/530, p a r a s . 26, 52, 560/Rev.l,

240, 243 617, 627, 627/Add.lj ESC ( X I I I ) ,
Suppl. 9, p a r a . 81, and annex I ,
art.50

CHR ( I X ) E/CN.4/SR.354, E/CN.4/L.232, 240, 264; ESC ( X V l ) , 50

355, 409 Supp. 8, p a r a s . l 4 0 - l 4 2 , annex I B,
a r t . 35, and annex I I I , p a r a s . 120-122
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ARTICLE 36

S e c r e t a r y and s t a f f o f t h e committee

1. The S e c r e t a r y o f t h e Committee s h a l l be a h i g h
o f f i c i a l o f t h e U n i t e d N a t i o n s , e l e c t e d b y t h e Committee
f r o m a l i s t o f t h r e e names s u b m i t t e d b y t h e S e c r e t a r y -
General o f t h e U n i t e d N a t i o n s .

2. The c a n d i d a t e o b t a i n i n g t h e l a r g e s t number o f
votes- and an a b s o l u t e m a j o r i t y o f t h e v o t e s o f a l l t h e
members o f t h e Committee s h a l l be d e c l a r e d e l e c t e d .

3 **4fe' S e c r e t a r y - G e n e r a l o f t h e U n i t e d N a t i o n s s h a l l
p r o v i d e t h e necessary s t a f f and f a c i l i t i e s f o r t h e
Committee and i t s members; t h e s t a f f s h a l l be p a r t o f
the U n i t e d Nations S e c r e t a r i a t .

k-0. The d i s c u s s i o n on t h i s a r t i c l e r e l a t e d t o t h e method o f appointment o f a

s e c r e t a r y o f t h e committee and t o t h e p r o v i s i o n o f s t a f f and f a c i l i t i e s for i t .
A p r o v i s i o n t h a t t h e s e c r e t a r y o f t h e committee " s h a l l a t t e n d i t s meetings, make
a l l necessary arrangements, i n accordance w i t h t h e committee's i n s t r u c t i o n s ,
for t h e p r e p a r a t i o n and conduct o f t h e work, and c a r r y o u t any o t h e r d u t i e s
a s s i g n e d t o h i m b y t h e committee", was d e l e t e d , because i t was c o n s i d e r e d that
these p u r e l y a d m i n i s t r a t i v e m a t t e r s c o u l d he l e f t t o be worked o u t between t h e
committee and i t s s e c r e t a r y .

9/
Appointment o f t h e s e c r e t a r y '
hi. I t had been envisaged t h a t t h e s e c r e t a r y w o u l d be a p p o i n t e d b y t h e
Secretary-General o f t h e U n i t e d N a t i o n s w i t h t h e a p p r o v a l o f t h e committee. When
i t was-decided t o have t h e members o f t h e committee e l e c t e d b y t h e I n t e r n a t i o n a l
Court o f J u s t i c e , i t was a l s o decided t o have t h e s e c r e t a r y a p p o i n t e d b y t h e

9/ E / C N A / S R . 1 9 0 , 200, 212, 239, 354, 4o9; E/CN.4/474, a r t . 12,

530/Add.l, para.16, 560/Rev.l, 620, 675, p a r a s . 5-7; E/CN.4/L.227,
232, 264; E/1992/Add.l; ESC ( X V I ) , Suppl.8, paras. 131-136, and
annex I I I , p a r a s . 100-106; GA ( V l ) , 3rd Com., 360th mtg.
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C o u r t f r o m a l i s t o f t h r e e names s u b m i t t e d by t h e committee. T h i s was r e p l a c e d

by t h e p r e s e n t t e x t under w h i c h t h e s e c r e t a r y o f t h e committee i s t o be a h i g h
o f f i c i a l o f t h e U n i t e d N a t i o n s e l e c t e d b y t h e committee f r o m a l i s t o f t h r e e
names s u b m i t t e d by t h e S e c r e t a r y - G e n e r a l .
42. The o p i n i o n was expressed t h a t t h e committee w o u l d be s e t up under t h e
a u s p i c e s o f t h e U n i t e d N a t i o n s and i t was p r o p e r t h a t i t s s e c r e t a r y s h o u l d be a
p e r s o n nominated b y t h e S e c r e t a r y - G e n e r a l f r o m persons o c c u p y i n g s e n i o r p o s t s
i n the Secretariat. Reference was made t o t h e o p i n i o n o f t h e S e c r e t a r y - G e n e r a l ,
who had s t a t e d t h a t , w h i l e t h e committee would have f u l l independence o f a c t i o n
i n d e a l i n g w i t h t h e s u b s t a n t i v e and t e c h n i c a l m a t t e r s i n w h i c h i t was engaged,
the appointment o f t h e s e c r e t a r y s h o u l d be made f r o m among t h e s e n i o r s t a f f o f
the U n i t e d N a t i o n s S e c r e t a r i a t , and t h a t , f o r a l l a d m i n i s t r a t i v e purposes,
the committee's s e c r e t a r y s h o u l d be s u b j e c t t o t h e a u t h o r i t y o f t h e
S e c r e t a r y - G e n e r a l and governed by t h e s t a f f r u l e s and r e g u l a t i o n s o f t h e
Organization. I t was f e l t , however, t h a t i n view o f t h e i m p o r t a n t d u t i e s
w h i c h w o u l d d e v o l v e upon t h e s e c r e t a r y , i t was necessary t h a t t h e committee
i t s e l f s h o u l d have a v o i c e r e g a r d i n g t h e choice o f i t s s e c r e t a r y . While a
p r o p o s a l f o r t h e appointment o f t h e s e c r e t a r y b y t h e S e c r e t a r y - G e n e r a l was
r e j e c t e d i n f a v o u r o f t h e e l e c t i o n b y t h e committee, p r e f e r e n c e f o r e l e c t i o n b y
the Court was s t i l l v o i c e d , on t h e grounds t h a t t h e s e c r e t a r y w o u l d p l a y an
i m p o r t a n t p a r t i n p r e p a r i n g and examining cases coming b e f o r e t h e committee and
t h a t , t h e r e f o r e , t h e procedure i n r e s p e c t o f h i s e l e c t i o n s h o u l d be s i m i l a r t o
those l a i d down f o r e l e c t i o n o f t h e committee members. I t was a l s o s t a t e d t h a t
the p r e s e n t t e x t d i d n o t o f f e r an a b s o l u t e guarantee o f independence because i t
r e s t r i c t e d t h e committee's c h o i c e t o t h e t h r e e c a n d i d a t e s proposed by t h e
Secretary-General.

43. Paragraph 2 o f t h e a r t i c l e r e q u i r e s t h a t e l e c t i o n o f t h e S e c r e t a r y s h o u l d
be by "an a b s o l u t e m a j o r i t y o f t h e v o t e s o f a l l t h e members o f t h e committee".
I t was c o n s i d e r e d t h a t a m a t t e r o f such importance s h o u l d n o t be d e c i d e d b y a
s m a l l m a j o r i t y , w h i c h m i g h t be t h e case, i f o n l y a b a r e quorum o f t h e committee
were p r e s e n t .
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S t a f f and f a c i l i t i e s f o r t h e committe'

44. The p r o v i s i o n t h a t " t h e s t a f f s h a l l he p a r t o f t h e U n i t e d N a t i o n s

S e c r e t a r i a t " was added a t t h e end o f p a r a g r a p h 3 o f t h e a r t i c l e i n o r d e r t o
make i t c l e a r t h a t t h e s t a f f would be p a r t o f t h e U n i t e d N a t i o n s S e c r e t a r i a t .
T h i s w o r d i n g was p r e f e r r e d t o "drawn f r o m t h e U n i t e d N a t i o n s S e c r e t a r i a t , "
as b e i n g l e s s ambiguous. Reference was made, i n t h i s connexion, t o t h e
o b s e r v a t i o n o f t h e S e c r e t a r y - G e n e r a l t h a t t h e c r e a t i o n o f new s m a l l autonomous
u n i t s would n o t be c o n s i s t e n t w i t h t h e wishes o f t h e General Assembly t o p r o v i d e
a centralized Secretariat. The p r o v i s i o n was opposed on t h e grounds t h a t i t
was wrong i n p r i n c i p l e t o p r e s c r i b e t h a t e x p e n d i t u r e , w h i c h would a f f e c t o n l y
c e r t a i n Member S t a t e s , s h o u l d be met o u t o f t h e U n i t e d N a t i o n s budget as a
whole, u n l e s s a l l Members were t o become p a r t i e s t o t h e covenant.

DOCUMENTATION

Organ and Records o f Article

session discussion Other documents number
CHR ( V I ) E/CN.ySR.190, 200 E/CN.4/474, a r t s . 12, 18, 19;
E S C ( X l ) , Suppl. 5? annex I ,
a r t s . 30, 36, 37

CHR ( V I I ) E/CN.ySR.212, 239, E/CN.V56o/Rev.l, 617, 620, 627, 30, 36,

24o, 2k3, 2k9 627/Add.lj ESC ( X I I I ) , Suppl.9, 37
paras.79? 82, and annex I ,
a r t s , 44, k-9, 51

ESC ( X I I I ) E/1992/Add.l 44, 4 ?9

51

GA ( V I ) 3rd Com., 360th m t g . 44, 4 ?9

51

CHR ( V I I I ) //530/Add.l, p a r a . 16 44, k9,

51

CHR ( I X ) E/CN.4/SR.354, 355, E/CN.4/675, p a r a s . 5-7, L.227, 44, 49,

k09 232, 264; ESC ( X V I ) , Suppl.8, 51
paras.131-139? annex I B , a r t . 3 6 ,
annex I I I , paras.100-106, 123-124,
166-167, and annex V I I A

10/ E/CN.4/SR.190, 200, 243, 249, 355; E/CN.4/474, a r t . 1 9 , 560/Rev.i, 627,

627/Add.l, 675, p a r a s . 5-7; E/CN.4/L.232; E/1992/Add.l; ESC ( X V l ) ,
Supp.8, p a r a s . 137-139? and annex I I I , p a r a s . 123-125.
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ARTICLE 37

Meetings o f t h e committee

1. The S e c r e t a r y - G e n e r a l o f t h e U n i t e d N a t i o n s s h a l l
convene t h e i n i t i a l m e e t i n g o f t h e Committee a t t h e
Headquarters o f t h e U n i t e d N a t i o n s .

2. After its i n i t i a l m e e t i n g , t h e Committee s h a l l meet:

(a) A t such t i m e s as i t deems necessary;

(b) When any m a t t e r i s r e f e r r e d t o i t under a r t i c l e 40;

(c) When convened h y i t s Chairman o r a t t h e r e q u e s t o f

not l e s s t h a n f i v e o f i t s members.

3. The Committee s h a l l meet a t t h e Headquarters o f t h e

U n i t e d N a t i o n s o r a t Geneva.

45. T h i s a r t i c l e l a y s down t h e methods f o r c o n v e n i n g t h e committee. Questions

were r a i s e d whether t h e a r t i c l e s h o u l d n o t c o n t a i n a s p e c i f i c p r o v i s i o n whereby
the committee, i f so empowered, c o u l d be convened t o d e a l w i t h o t h e r m a t t e r s
t h a n t h o s e c o n t e m p l a t e d , and whether p a r a g r a p h 3 was i n t e n d e d t o p r o v i d e f o r a
f i x e d place o f meeting.
46. The v i e w was expressed t h a t i t was d e s i r a b l e t o i n c l u d e an e x p l i c i t
p r o v i s i o n f o r convening t h e committee i n case t h e l a t t e r were empowered t o d e a l
w i t h m a t t e r s o t h e r t h a n t h o s e c o n t e m p l a t e d i n t h e covenant, f o r example, b y a
p r o t o c o l which m i h t p r o v i d e f o r t h e c o n s i d e r a t i o n b y t h e committee o f p e t i t i o n s
f r o m i n d i v i d u a l s and non-governmental o r g a n i z a t i o n s . I t was f e l t , however , t h a t
the i n i t i a t i v e g i v e n t o t h e Chairman i n p a r a g r a p h 2 ( c ) would t a k e care o f
such e v e n t u a l i t i e s .
47. V a r y i n g o p i n i o n s were e x p r e s s e d c o n c e r n i n g t h e m e e t i n g p l a c e o f t h e
committee. P r o p o s a l s aimed a t changing p a r a g r a p h ^3 o f t h e a r t i c l e t o p r o v i d e
t h a t t h e committee s h a l l " n o r m a l l y ' V e e t a t Headquarters o r a t Geneva, o r t h a t
the committee s h a l l meet a t t h e s e p l a c e s "unless i t i s i m p o s s i b l e " , were
rejected. A c c o r d i n g t o one v i e w t h e committee c o u l d o n l y meet a t t h e Headquarte
of t h e U n i t e d N a t i o n s o r a t Geneva. Another o p i n i o n was t h a t p a r a g r a p h 3 d i d
not s p e c i f i c a l l y p r o h i b i t t h e committee f r o m m e e t i n g e l s e w h e r e .
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DOCUMENTATION

Organ and Records o f Article

session discussion Other documents number

CHR ( V I ) E/CN.SR. E/CN.4/474, a r t s . 13 and 17; ESC ( X l ) , S u p p l . 5,

190, 200 annex 1 , a r t s . 31, 35

CHR ( V I I ) E/CN.ysR.239 E/CN.V560/Rev.l, 6 l 7 , 620; ESC ( X I I l ) , 31

S u p p l . 9, annex I , a r t s , 45, 48 35

CHR ( I X ) E/CN.4/SR. E/CN.V675, p a r a . 23, L. 264; ESC ( X V l ) , 45

54, 409 S u p p l . 8, annex I B, a r t . 37, and annex I I I , 48
p a r a s . IO7-IO8, I I 8 - I I 9
k2$29
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ARTICLE 38

Solemn d e c l a r a t i o n b y members o f t h e committee

E v e r y member o f t h e committee s h a l l , b e f o r e t a k i n g up h i s
d u t i e s , make a solemn d e c l a r a t i o n i n open committee t h a t he w i l l
e x e r c i s e h i s powers i m p a r t i a l l y and c o n s c i e n t i o u s l y .

T h i s a r t i c l e was i n c l u d e d t o s t r e s s , b o t h f o r t h e members themselves and

T
f o r p u b l i c o p i n i o n , t h e importance and s e r i o u s n e s s o f t h e c o m m i t t e e s
responsibilities. The t e x t o f t h e a r t i c l e f o l l o w s c l o s e l y t h a t o f a r t i c l e 20
o f t h e S t a t u t e o f t h e I n t e r n a t i o n a l Court o f J u s t i c e

DOCUMENTATION

Organ and Records o f Article

session discussion Other documents number

CHR ( I X ) E/CN.VSR.35^ E/CN.U/L.238; ESC ( X V l ) , s u p p l . 8 ,

p a r a s . 129-130, annex I B, a r t . 38 and
annex I I I , p a r a s . 109-110
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ARTICLE 39

E l e c t i o n o f o f f i c e r s and r u l e s o f procedure

1. The Committee s h a l l e l e c t i t s Chairman and V i c e -

Chairman f o r t h e p e r i o d o f one y e a r . They may he
re-elected. The f i r s t Chairman and t h e f i r s t V i c e -
Chairman s h a l l he e l e c t e d a t t h e i n i t i a l meeting o f
t h e Committee.

2. The Committee s h a l l e s t a b l i s h i t s own r u l e s o f

procedure, b u t these r u l e s s h a l l p r o v i d e , i n t e r a l i a , t h a t :

(a) Seven members s h a l l c o n s t i t u t e a quorum;

(b) D e c i s i o n s o f t h e Committee s h a l l be made by

a m a j o r i t y v o t e o f t h e members p r e s e n t ; i f t h e v o t e s
a r e e q u a l l y d i v i d e d t h e Chairman s h a l l have a c a s t i n g
vote;

(c) I f a S t a t e r e f e r s a m a t t e r t o t h e Committee under

a r t i c l e 40,

(i) Such S t a t e , t h e S t a t e complained a g a i n s t , and

any S t a t e P a r t y t o t h i s Covenant whose n a t i o n a l
I s concerned i n such m a t t e r may make submissions
i n w r i t i n g t o t h e Committee;

(ii) Such S t a t e and t h e S t a t e complained a g a i n s t s h a l l

have t h e r i g h t t o be r e p r e s e n t e d a t t h e h e a r i n g
of t h e m a t t e r and t o make submissions o r a l l y ;

(d) The Committee s h a l l h o l d h e a r i n g s and o t h e r meetings

i n closed session.

11/
Election of o f f i c e r s '
1+9. I t was suggested t h a t paragraph 1, t h e f i r s t two sentences o f which were
based on a r t i c l e 21, paragraph 1 o f t h e S t a t u t e o f t h e I n t e r n a t i o n a l Court o f
J u s t i c e , might be c o n f i n e d t o s t a t i n g t h a t t h e committee s h a l l e l e c t i t s
chairman and v i c e - c h a i r m a n . A p r o v i s i o n c o n c e r n i n g r o t a t i o n o f these offices
amongst t h e members o f t h e committee was c o n s i d e r e d i n a p p r o p r i a t e , b u t a

11/ E/CN. SR. 239, 35I+; E/CN.4/530, p a r a . 1+5, 560/Rev.l, L.227; ESC ( X I I l ) ,
Suppl, 9, annex I I I , paras. 111-113; GA ( v ) , annexes, a . i . 63,
/.3/534, para. 21.
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p r o v i s i o n c o n c e r n i n g e l i g i b i l i t y f o r r e - e l e c t i o n was i n c l u d e d . I t was a l s o
t h o u g h t necessary t o maintain the p r o v i s i o n concerning the e l e c t i o n o f t h e
f i r s t o f f i c e r s a t t h e " i n i t i a l m e e t i n g " o f t h e committee, i n order t h a t t h e
o r g a n i z a t i o n o f t h e committee c o u l d proceed smoothly.

12/
Method o f v o t i n g
50. A p r o p o s a l was s u b m i t t e d t h a t d e c i s i o n s o f t h e committee s h o u l d be made
by a m a j o r i t y v o t e o f " t h e members p r e s e n t and v o t i n g " . I t was p o i n t e d o u t ,
however, t h a t i n t h e General Assembly d e c i s i o n s were sometimes t a k e n by v e r y
s m a l l m a j o r i t i e s , owing t o l a r g e numbers o f a b s t e n t i o n s . I n order t o provide
a g a i n s t such an occurrence i n t h e case o f t h e committee, t h e words "and v o t i n g "
were d e l e t e d .

13/
O r a l and w r i t t e n submissions b y S t a t e s t o t h e committee

51. There was no o p p o s i t i o n t o t h e i n c l u s i o n o f p r o v i s i o n s t h a t States

concerned i n a m a t t e r r e f e r r e d t o t h e committee under a r t i c l e hO s h o u l d have
the r i g h t s o f b e i n g r e p r e s e n t e d a t t h e h e a r i n g s and t o make submissions orally
and i n w r i t i n g . O p i n i o n , however, v a r i e d as t o whether o t h e r S t a t e s p a r t i e s
t o t h e covenant s h o u l d have t h e r i g h t t o make w r i t t e n submissions. Among t h e
s u g g e s t i o n s were t h a t a l l S t a t e s p a r t i e s t o t h e covenant s h o u l d he p e r m i t t e d
to e x e r c i s e t h i s r i g h t , t h a t t h e r i g h t s h o u l d be r e s t r i c t e d t o S t a t e s p a r t i e s
" h a v i n g an i n t e r e s t i n t h e case", t h a t t h e r i g h t s h o u l d be g r a n t e d o n l y t o a
S t a t e p a r t y "whose n a t i o n a l i s concerned" i n a d i s p u t e , and t h a t no p r o v i s i o n
at a l l s h o u l d be i n c l u d e d . Paragraph 2 ( c ) o f t h e p r e s e n t d r a f t p r o v i d e s t h a t
x v r i t t e n submissions may be made o n l y by S t a t e p a r t y "whose n a t i o n a l i s
concerned i n a d i s p u t e " .
52. I n s u p p o r t o f a l l o w i n g a l l S t a t e s p a r t i e s t o make w r i t t e n submissions, i t -
was contended t h a t , a l t h o u g h i n d i s c r i m i n a t e i n t e r v e n t i o n was n o t t o be encouraged,
a l l S t a t e s p a r t i e s would have an i n t e r e s t i n m a t t e r s r e f e r r e d t o t h e committee

12/ E/CN.4/SR.190, E/CS.k/k'jk, a r t . 15.

13/ E/CN.I4/SR.190, 200, 239, 354, 387; E/CN.U/U74, a r t . 15, 560/Rev.i,

6PO. T..PP7- RO (YT). s u t r c l . 5. annex I , a r t . 33, ( X I I l ) , annex I , a r t . +7,
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and t h e y s h o u l d n o t he p r e v e n t e d f r o m g i v i n g t h e i r views on t h e meaning o f t h e

covenant which m i g h t h e l p t h e process o f c o n c i l i a t i o n . Furthermore, f o r f a c t -
f i n d i n g purposes, i n f o r m a t i o n f u r n i s h e d by o t h e r S t a t e s p a r t i e s would be of
m a t e r i a l b e n e f i t t o t h e committee. I t was most u n l i k e l y t h a t such a procedure
would l e a d e i t h e r t o undue p u b l i c i t y or make t h e t a s k o f t h e committee more
difficult.
53- R e s t r i c t i o n s on t h e p r o v i s i o n were f e l t a d v i s a b l e by t h o s e who considered
t h a t i t was u n d e s i r a b l e t o g i v e undue p u b l i c i t y t o cases, or t o s u b j e c t t h e
committee t o undue p r e s s u r e , o r t o j e o p a r d i z e t h e p o s i t i o n o f t h e committee as
a c o n c i l i a t i o n body. I t was thought, t h e r e f o r e , t h a t the r i g h t should be
r e s t r i c t e d t o S t a t e s p a r t i e s s u b m i t t i n g a c l a i m t h a t t h e y had an i n t e r e s t i n
a case. Such a procedure would a l s o leave t h e committee f r e e t o decide w h i c h
S t a t e s p a r t i e s had an i n t e r e s t i n each case. Those f a v o u r i n g t h e p r e s e n t text
f e l t , however, t h a t t h i s would leave t o o much d i s c r e t i o n t o a S t a t e p a r t y and
would n o t a l l o w t h e committee t o f u l f i l i t s f u n c t i o n s i n t h e c o n d i t i o n s b e s t
f i t t e d t o achieve s u c c e s s f u l r e s u l t s . Moreover, t h e r e was no reason why a
S t a t e p a r t y which merely t o o k an i n t e r e s t i n a d i s p u t e b u t had n o t f o l l o w e d a l l
t h e p r e s c r i b e d procedures s h o u l d be a l l o w e d t o i n t e r v e n e i n t h e proceedings a t
a stage t h a t m i g h t be crucial.
54. Another o p i n i o n f a v o u r e d t h e o m i s s i o n o f a l l such p r o v i s i o n s . The
committee s h o u l d be l e f t t o decide whether a S t a t e p a r t y t h a t was not directly
concerned i n a d i s p u t e c o u l d i n t e r v e n e . I t was a l s o p o i n t e d o u t t h a t i t would
be p r e f e r a b l e t h a t any S t a t e which c o n s i d e r e d t h a t i t had an i n t e r e s t i n a case
s h o u l d lodge a c o m p l a i n t and t h u s become a p a r t y t o t h e d i s p u t e . Otherwise
p o l i t i c a l c o n s i d e r a t i o n s m i g h t be i n t r o d u c e d i n t o t h e h a n d l i n g o f t h e case.
Moreover, i t was dangerous t o s p e c i f y t h a t a t h i r d S t a t e whose n a t i o n a l was
i n v o l v e d i n a d i s p u t e between o t h e r S t a t e s c o u l d i n t e r v e n e , as t h i s m i g h t be
i n f a v o u r o f one o f t h e p a r t i e s t o t h e d i s p u t e . The l a t t e r v i e w was objected t o ,
however, as r e s t r i c t i n g t h e r i g h t o f a S t a t e t o p r o t e c t i t s n a t i o n a l s .
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P a r t i c i p a t i o n o f a n a t i o n a l o f a State i n a dispute hefore the committee

55. The o p i n i o n was expressed t h a t i t would he d e s i r a b l e t o i n c l u d e a p r o v i s i o n

s i m i l a r t o t h a t o f A r t i c l e 31 o f t h e S t a t u t e o f t h e I n t e r n a t i o n a l Court o f
J u s t i c e , t h a t i f t h e committee i n c l u d e d no person o f t h e n a t i o n a l i t y o f t h e
p a r t i e s t o a d i s p u t e , each o f them s h o u l d proceed t o choose a p e r s o n t o s i t i n
t h e committee w i t h t h e r i g h t t o v o t e , such person b e i n g chosen f r o m t h o s e
nominated as c a n d i d a t e s f o r r e g u l a r e l e c t i o n . I f t h e r e were s e v e r a l p a r t i e s
concerned, t h e y were, f o r t h e purpose o f t h e p r o v i s i o n , t o be reckoned as one
o n l y , any doubt b e i n g r e s o l v e d by t h e committee. I t was c l a i m e d t h a t , i f such
p r o v i s i o n s were made i n j u d i c i a l m a t t e r s , t h e r e was a l l t h e more reason f o r
making i t i n connexion w i t h a body t h a t would e s s e n t i a l l y be concerned w i t h
conciliation. A l t h o u g h t h e members o f t h e committee would no doubt p e r f o r m
t h e i r work w i t h a b s o l u t e i n t e g r i t y , some i n e q u a l i t y as between s o v e r e i g n S t a t e s
m i g h t r e s u l t i n a case where a n a t i o n a l o f one p a r t y t o t h e d i s p u t e was a member
o f t h e committee and no n a t i o n a l o f t h e o t h e r was a member. The committee
s h o u l d have every a s s i s t a n c e i n examining f a c t s and r e a c h i n g c o n c l u s i o n s . There
was t h u s much t o be s a i d f o r t h e presence i n t h e committee o f a person a b l e

t o gauge t h e s i t u a t i o n i n t h e c o u n t r y whose case was under c o n s i d e r a t i o n ,

e s p e c i a l l y as t h e c h o i c e o f t h e n a t i o n a l would be l i m i t e d t o t h o s e nominated
f o r r e g u l a r e l e c t i o n s t o t h e committee.
56. I t was c o n s i d e r e d , on t h e o t h e r hand, t h a t v i o l a t i o n s o f human r i g h t s ,
and i n t e r n a t i o n a l concern t h e r e i n , s h o u l d n o t be s u b j e c t t o n a t i o n a l i n t e r e s t s
and c o n s i d e r a t i o n s . Members o f t h e committee, once e l e c t e d , were e x p e c t e d
t o a c t as independent and i m p a r t i a l i n d i v i d u a l s , n o t as n a t i o n a l r e p r e s e n t a t i v e s
I t d i d n o t seem p r o p e r t o a l l o w a S t a t e which had v i o l a t e d a human r i g h t t o
s i t as i t s own judge and t o p r o v i d e f o r t h e p o s s i b i l i t y t h a t h i s v o t e m i g h t
decide t h e i s s u e . There was a l s o a d i f f e r e n c e between t h e f u n c t i o n s o f t h e
I n t e r n a t i o n a l Court o f J u s t i c e and t h e committee, t h e l a t t e r b e i n g m e r e l y a
c o n c i l i a t i o n body h a v i n g no power t o d e l i v e r judgments. I t was n o t necessary
t o have i n a c o n c i l i a t i o n body persons o f t h e same n a t i o n a l i t y as t h e p a r t i e s

14/ E/CN.VSR. 190, 239, 387; E/CN.4/474, a r t . l 6 , 530, p a r a . 49, 530/Add,1,

p a r a . 27, 556, L.228; E / A C . 7 / S R , 1 4 9 , E/2059/Add,2 and Add.5; E S C ( X l )
s u p p l . 5, a r t . 34, ( X I I I ) , s u p p l , 9, p a r a . 78 and annex I I , ( X V l ) , s u p p l .
p a r a s . 181-184, annex I I I , p a r a s . 175-176; GA ( V l ) , 3rd Com., 371st mtg.
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t o a d i s p u t e , so l o n g as t h e l a t t e r were r e p r e s e n t e d and a l l o w e d t o make o r a l

and w r i t t e n submissions as had been p r o v i d e d under a r t i c l e 39, paragraph 2 ( c ) ,
o f t h e covenant. Besides, t h e proposals envisaged i n c l u s i o n o f r e p r e s e n t a t i v e s
i n t h e committee whose appointment would be e n t i r e l y d i f f e r e n t f r o m t h a t f o l l o w e d
f o r members o f t h e committee; i n such a case p o l i t i c a l elements m i g h t be
i n t r o d u c e d i n t o t h e committee, t h e r e b y d e s t r o y i n g t h e b a l a n c e o f i t s c o m p o s i t i o n
and a f f e c t i n g i t s s p i r i t . Moreover, when a d i s p u t e i n v o l v e d a number o f
S t a t e s t h e r e would be danger o f t h e committee b e i n g c o n s i d e r a b l y enlarged,
p o s s i b l y g i v i n g r i s e t o s i t u a t i o n s where i t would i n c l u d e as many a d d i t i o n a l
members as t h e r e g u l a r members. On t h e o t h e r hand, i f s e v e r a l i n t e r e s t e d
States were t o nominate o n l y one p e r s o n , t h e y m i g h t j u s t i f i a b l y o b j e c t t o t h e
c u r t a i l m e n t o f t h e i r r i g h t s , once t h e i d e a o f p a r t i c i p a t i o n o f n a t i o n a l members
was accepted.
57- Another p o i n t o f v i e w was t h a t a r t i c l e 39, paragraph 2 ( c ) , should satisfy
t h e l e g i t i m a t e concern o f S t a t e s , and any f e a r s s h o u l d be a l l a y e d by t h e f a c t
t h a t under a r t i c l e s 28 and 38 t h e members o f t h e committee were sworn t o
independence and i m p a r t i a l i t y o f a c t i o n . I n d e e d , i f t h e r e were any d o u b t , i t
would be b e t t e r and more a p p r o p r i a t e t o p r e s c r i b e t h a t a member o f t h e committee
who was a n a t i o n a l o f a S t a t e concerned i n a d i s p u t e s h o u l d n o t p a r t i c i p a t e i n
t h e committee's d e l i b e r a t i o n s on t h a t m a t t e r .
58, The p r e s e n t d r a f t does n o t i n c l u d e any p r o v i s i o n r e l a t i n g t o t h e
p a r t i c i p a t i o n i n t h e committee o f a n a t i o n a l o f a S t a t e p a r t y t o a d i s p u t e
b e f o r e t h e committee.
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Organ and Records o f Article

session discussion Other documents number

CHR ( V I ) E/CN. SR.190-200 E/CN.4/474, a r t s . l 4 , 15 and 16;

ESC ( X I ) , s u p p l . 5, annex I ,
a r t s . 32, 33, 34

ESC ( X I ) E/AC.7/SR.149, 15 E/L.68, p a r a s . 113-117 32,33,34

GA ( V ) 3rd Com., 301st mtg, Annexes a . i . 63, /.3/534, p a r a . 21 32, 33

CHR ( V I I ) E/CN.SR.210, 214, 239 E/CN.4/530, p a r a s . 44-51, 550, 556. 32, 33,
560/Rev.l, 566, 617, 620;ESC ( X I I I ) , 34
s u p p l . 9 , p a r a . 78, annex I , a r t s .
46, 47, and annex I I

ESC ( X I I I ) E/2059/Add.2 and Add.5, E/C.2/299

GA ( V I ) 3rd Com., 371st mtg,

CHR ( V I I I ) E/CN.4/530/Add.l, p a r a . 27

CHR ( I X ) E/CN.ySR.354, 387, E/CN.4/675, p a r a s . 21-22, L.227, 228, 46, 47

409 245, 264, 264/Add.l; ESC ( X V l ) ,
s u p p l . 8, p a r a s . 177-184, annex I B,
a r t . 39, and annex I I I , p a r a s . 111-
117, I75-I76
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ARTICLE kO

J u r i s d i c t i o n o f t h e human r i g h t s committee

1. I f a S t a t e P a r t y t o t h e Covenant c o n s i d e r s t h a t a n o t h e r S t a t e
P a r t y i s n o t g i v i n g e f f e c t t o a p r o v i s i o n o f t h e Covenant, i t may,
by w r i t t e n communication, b r i n g t h e m a t t e r t o t h e a t t e n t i o n o f t h a t
State. W i t h i n t h r e e months a f t e r t h e r e c e i p t o f t h e communication,
the r e c e i v i n g S t a t e s h a l l a f f o r d t h e c o m p l a i n i n g S t a t e an
e x p l a n a t i o n o r statement i n w r i t i n g c o n c e r n i n g t h e m a t t e r , w h i c h
s h o u l d i n c l u d e , t o t h e e x t e n t p o s s i b l e and p e r t i n e n t , r e f e r e n c e s
t o domestic procedures and remedies t a k e n , or pending, o r a v a i l a b l e
i n the matter.

2. I f the matter i s not adjusted t o the s a t i s f a c t i o n of b o t h

P a r t i e s w i t h i n s i x months a f t e r t h e r e c e i p t by t h e r e c e i v i n g S t a t e
o f t h e i n i t i a l communication, e i t h e r S t a t e s h a l l have t h e r i g h t t o
r e f e r t h e m a t t e r t o t h e Committee, by n o t i c e g i v e n t o t h e S e c r e t a r y
o f t h e Committee, and t o t h e o t h e r S t a t e .

3. S u b j e c t t o t h e p r o v i s i o n s o f a r t i c l e kl below, i n s e r i o u s and
u r g e n t cases t h e Committee may, a t t h e r e q u e s t o f t h e c o m p l a i n i n g
S t a t e , d e a l e x p e d i t i o u s l y w i t h t h e m a t t e r on r e c e i p t o f t h a t
r e q u e s t i n accordance w i t h t h e powers c o n f e r r e d on i t by t h i s p a r t
o f t h e Covenant and a f t e r n o t i f y i n g t h e S t a t e s concerned.

59- T h i s a r t i c l e p r e s c r i b e s t h e procedure which i s t o be f o l l o w e d i n t h e event o f

a v i o l a t i o n o f a p r o v i s i o n o f t h e covenant. D i s c u s s i o n centred, m a i n l y on t h e
q u e s t i o n whether t h e r i g h t t o i n i t i a t e proceedings b e f o r e t h e committee s h o u l d be
c o n f i n e d t o S t a t e s p a r t i e s o r whether t h e committee s h o u l d be empowered t o a c t on
i t s own i n i t i a t i v e or t o r e c e i v e p e t i t i o n s or communications f r o m i n d i v i d u a l s ,
groups o f i n d i v i d u a l s and non-governmental o r g a n i z a t i o n s .
60. Other q u e s t i o n s d i s c u s s e d concerned r e c o u r s e t o t h e committee on m a t t e r s
a r i s i n g o u t o f a r t i c l e 1 o f t h e d r a f t covenant and t h e procedure t o be f o l l o w e d i n
s e r i o u s and u r g e n t cases.

I n i t i a t i o n of proceedings

61. O p i n i o n was d e e p l y d i v i d e d c o n c e r n i n g t h e r i g h t t o i n i t i a t e proceedings before

the committee.- 'Some h e l d t h a t o n l y S t a t e s s h o u l d be a l l o w e d t o appeal t o t h e
committee. Others proposed v a r i o u s ways o f e n l a r g i n g t h e r i g h t t o i n i t i a t e
proceedings. I n r e s o l u t i o n 421 F (V) t h e General Assembly r e q u e s t e d t h e
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Commission on Eumsn R i g h t s t o c o n s i d e r p r o v i s i o n s " t o he i n s e r t e d i n t h e d r a f t

covenant o r i n separate p r o t o c o l s , f o r t h e r e c e i p t and e x a m i n a t i o n o f p e t i t i o n s
f r o m i n d i v i d u a l s and o r g a n i z a t i o n s w i t h r e s p e c t t o a l l e g e d v i o l a t i o n s o f t h e
covenant". A g a i n , b y r e s o l u t i o n 737 ( v T I l ) , t h e Assembly t r a n s m i t t e d t o t h e
Commission a p r o p o s a l r e q u e s t i n g i t t o d r a f t " p r o v i s i o n s r e c o g n i z i n g t h e r i g h t o f
p e t i t i o n o f e v e r y n a t u r a l person, e v e r y d u l y c o n s t i t u t e d group o f i n d i v i d u a l s and
e v e r y r e c o g n i z e d non-governmental o r g a n i z a t i o n " , f o r i n c l u s i o n i n t h e covenant i n
accordance w i t h t h e d e c i s i o n o f t h e General Assembly i n i t s r e s o l u t i o n 421 F (v)
mentioned above. A l l p r o p o s a l s , w h i c h would e x t e n d t h e r i g h t t o i n i t i a t e
p r o c e e d i n g s , were e i t h e r r e j e c t e d o r w i t h d r a w n . These i n c l u d e d a p r o p o s a l f o r a
s e p a r a t e p r o t o c o l ^ / on p e t i t i o n s f r c m non-governmental o r g a n i z a t i o n s , groups o f
i n d i v i d u a l s and i n d i v i d u a l s . A p r o p o s a l f o r t h e appointment o f a high
commissioner ( a t t o r n e y - g e n e r a l ) f o r human r i g h t s - ^ / was n o t d i s c u s s e d i n any
detail.
62. Those who c o n s i d e r e d t h e procedure o f t h e human r i g h t s committee c o n t r a r y t o
n a t i o n a l s o v e r e i g n t y , t o i n t e r n a t i o n a l law and t o A r t i c l e 2, paragraph 7, o f t h e
C h a r t e r opposed a l l procedures concerning complaints. I n t h e i r view, each S t a t e
p a r t y s h o u l d make e v e r y e f f o r t t o f u l f i l i t s o b l i g h t i o n s under t h e covenant, b u t
no S t a t e p a r t y s h o u l d s e t i t s e l f up as a judge o f t h e domestic a c t i o n s o f a n o t h e r .
The r i g h t o f i n d i v i d u a l s and groups t o complain a g a i n s t v i o l a t i o n s or t h e i r rights
a t t h e n a t i o n a l l e v e l and t h e d u t y o f S t a t e s p a r t i e s t o ensure remedies f o r such
v i o l a t i o n s were f u l l y r e c o g n i z e d i n a r t i c l e 2 o f t h e d r a f t covenant. The C h a r t e r
p e r m i t t e d p e t i t i o n s o n l y i n t h e case o f t r u s t t e r r i t o r i e s , which d i d n o t r e l a t e t o
Sovereign States. Nor c o u l d t h e m i n o r i t i e s system o f t h e League o f N a t i o n s be
c i t e d as a p r e c e d e n t , because t h a t system had been imposed u n i l a t e r a l l y on c e r t a i n
States.

15/ See 81-83 below.

16/ See 84-86 below.
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Complaints b y S t a t e s and t h e r i g h t o f p e t i t i o n

63. O p p o s i t i o n t o any e x t e n s i o n o f t h e r i g h t t o i n i t i a t e proceedings beyond t h a t

p r o v i d e d i n a r t i c l e ko was r a i s e d on a number o f grounds. I n the f i r s t place,
i t was contended t h a t o n l y S t a t e s were s u b j e c t s o f i n t e r n a t i o n a l law. Secondly,
i t was c o n s i d e r e d t h a t t h e p r o v i s i o n s o f t h e covenant w o u l d be f u l l y safeguarded
by a system o f S t a t e - t o - S t a t e c o m p l a i n t s . T h i r d l y , i t was argued t h a t
i n t e r n a t i o n a l r e s p o n s i b i l i t y f o r t h e promotion o f human r i g h t s was r e l a t i v e l y
a r e c e n t development, and i t would be unwise t o a l l o w other, means o f i n i t i a t i n g
proceedings w h i c h m i g h t n o t be a c c e p t a b l e t o many c o u n t r i e s .
6k. The o p i n i o n was expressed t h a t t h e u n i t o f i n t e r n a t i o n a l o r g a n i z a t i o n was
the S t a t e , and i n t e r n a t i o n a l law was b a s i c a l l y i n t e r - S t a t e law. International
law a l s o r e c o g n i z e d t h e s o v e r e i g n e q u a l i t y o f S t a t e s . There was no g e n e r a l
acceptance o f any t h e o r y o f s u p r a - n a t i o n a l a u t h o r i t y . The p o s i t i o n o f i n d i v i d u a l s
and non-governmental o r g a n i z a t i o n s i n i n t e r n a t i o n a l l a w was n o t y e t e s t a b l i s h e d .
While t h e l e g i t i m a t e i n t e r e s t s o f t h e U n i t e d N a t i o n s a r i s i n g o u t o f C h a r t e r
p r o v i s i o n s on human r i g h t s c o u l d n o t be q u e s t i o n e d , the obligations o f States t o
co-operate under t h e C h a r t e r i n no way I m p l i e d , a p a r t f r o m t h e t r u s t e e s h i p
system, t h e a u t o m a t i c recognition o f t h e r i g h t o f p e t i t i o n o f i n d i v i d u a l s and
non-governmental o r g a n i z a t i o n s . The covenant would be an i n t e r n a t i o n a l t r e a t y
imposing r e c i p r o c a l o b l i g a t i o n s on S t a t e s ; r e s p o n s i b i l i t y f o r t h e observance o f
i t s p r o v i s i o n s should r e s t w i t h States. Other methods o f i n i t i a t i n g proceedings
would go beyond what was commonly r e c o g n i z e d b y i n t e r n a t i o n a l law. These
methods m i g h t v i o l a t e t h e s o v e r e i g n t y o f S t a t e s . They m i g h t a l s o i n f r i n g e t h e
p r i n c i p l e o f s o v e r e i g n e q u a l i t y o f S t a t e s , s i n c e S t a t e s n o t p a r t i e s t o t h e covenant
m i g h t i n v i t e i n d i v i d u a l s o r non-governmental o r g a n i z a t i o n s t o s u b m i t complaints
against State p a r t i e s .

65. There were a l s o no reasons f o r d o u b t i n g t h a t S t a t e s p a r t i e s would fulfil

their obligations. There was n o t h i n g t o p r e v e n t them f r o m t a k i n g up cases o f
v i o l a t i o n s o f t h e p r o v i s i o n s o f t h e covenant. I n most cases, S t a t e s parties
would be a b l e t o s e t t l e d i s p u t e s b y d i r e c t d i p l o m a t i c n e g o t i a t i o n s , and t h e y
c o u l d be r e l i e d upon t o see t o i t t h a t any charges b r o u g h t b e f o r e t h e committee
were s t r i c t l y c o n f i n e d t o a v i o l a t i o n o f t h e covenant.
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66. I d e a l l y , t h e r i g h t o f i n d i v i d u a l s , and a t l e a s t o f non-governmental

o r g a n i z a t i o n s , ought t o he r e c o g n i z e d i n t e r n a t i o n a l l y as i t vas done n a t i o n a l l y .
Hovever, t h e i n t e r n a t i o n a l community vas n o t s u f f i c i e n t l y developed t h a t t h e r i g h t
o f p e t i t i o n c o u l d he g r a n t e d i m m e d i a t e l y w i t h o u t f e a r o f i t s b e i n g abused. Great
harm might be done t o S t a t e s and even t o t h e U n i t e d N a t i o n s b y a mass o f
irresponsible and mischievous a l l e g a t i o n s made f o r p o l i t i c a l o r propaganda purposes.
A l l persons s u f f e r i n g f r o m a sense o f i n j u s t i c e were l i k e l y t o submit c o m p l a i n t s ,
t h e r e b y p a r a l y z i n g t h e e n t i r e machinery o f i m p l e m e n t a t i o n , and i t was d o u b t f u l
whether adequate safeguards c o u l d be p r o v i d e d . Any d i s a p p o i n t m e n t w h i c h t h e
p u b l i c m i g h t f e e l as a consequence o f t h e o m i s s i o n o f t h e r i g h t o f p e t i t i o n would
n o t e q u a l t h e f a i l u r e , w h i c h m i g h t come about as a consequence o f t h e i n c l u s i o n o f
such a p r o v i s i o n , i n s e c u r i n g r a t i f i c a t i o n s b y many S t a t e s . This f a i l u r e might,
i n e f f e c t , p r e v e n t t h e e n t r y i n t o force' o f t h e covenant. Consequently, i t was
necessary t o examine t h e o p e r a t i o n o f t h e covenant i n p r a c t i c e and t o c o n s i d e r a t
some f u t u r e t i m e t h e d e s i r a b i l i t y o f p e r m i t t i n g t h e r i g h t o f p e t i t i o n w i t h i n
certain well-defined limits.
67. On t h e o t h e r hand, t h e o p i n i o n vas expressed t h a t i n t e r n a t i o n a l law was n o t
as r e s t r i c t i v e as was c l a i m e d , t h a t t h e problem o f i m p l e m e n t a t i o n had t o be
examined n o t o n l y f r o m t h e p o i n t o f view o f t h e r i g h t s o f S t a t e s b u t a l s o f r o m t h a t
o f t h e i n d i v i d u a l whose r i g h t s were b e i n g guaranteed, and t h a t c o m p l a i n t s f r o m
S t a t e s o n l y would n o t ensure e f f e c t i v e enforcement o f the provisions of the
covenant.
68. I t was contended t h a t t h e t h e o r y t h a t i n t e r n a t i o n a l law was concerned only
w i t h S t a t e s was n o t u n c h a l l e n g e d . Member S t a t e s o f t h e U n i t e d N a t i o n s , themselves,
had r e c o g n i z e d t h e p o s i t i o n o f t h e i n d i v i d u a l i n s i g n i n g t h e C h a r t e r . The
League o f N a t i o n s procedure f o r p r o t e c t i o n o f m i n o r i t i e s and t h e Upper S i l e s i a n
system were examples w h i c h showed t h a t i n d i v i d u a l s e n j o y e d some s t a n d i n g b e f o r e
i n t e r n a t i o n a l bodies. The u n i t o f i n t e r n a t i o n a l o r g a n i z a t i o n was n o t always t h e
State. For i n s t a n c e , t h e I n t e r n a t i o n a l Labour O r g a n i s a t i o n membership comprised
r e p r e s e n t a t i v e s o f governments, employers and employees. There were t h e
Nuremberg t r i a l s , t h e r e c e n t a t t e m p t s a t d r a f t i n g a s t a t u t e f o r an i n t e r n a t i o n a l
c r i m i n a l c o u r t , and t h e two d r a f t c o n v e n t i o n s on t h e e l i m i n a t i o n and r e d u c t i o n o f
s t a t e l e s s n e s s proposed b y t h e I n t e r n a t i o n a l Law Commission. Regional organizations
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and agreements, such as t h e European Convention f o r t h e P r o t e c t i o n o f Human R i g h t s

and Fundamental Freedoms, r e c o g n i z e d t h e p o s i t i o n o f t h e i n d i v i d u a l . Moreover,
s e v e r a l a u t h o r s o f d i s t i n c t i o n had abandoned t h e view t h a t i n t e r n a t i o n a l l a w
was e x c l u s i v e l y i n t e r - S t a t e law. A p a r t f r o m o t h e r examples, i n t h e v e r y terms
o f t h e covenant t h e i n d i v i d u a l was p l a i n l y a s u b j e c t o f i n t e r n a t i o n a l law, and
i t s purpose was t o p r o t e c t h i m a g a i n s t abuse o f power b y t h e S t a t e .
69. The view was expressed t h a t r e s t r i c t i o n on n a t i o n a l s o v e r e i g n t y was an
unavoidable concomitant o f t h e covenant, b u t each S t a t e w o u l d be f r e e t o accept
t h e covenant o r n o t . What was i n v o l v e d was a v o l u n t a r y r e l i n q u i s h m e n t o f some
n a t i o n a l s o v e r e i g n t y and n o t an i n v a s i o n o f i t . Of course, e v e r y p r e c a u t i o n
s h o u l d be t a k e n i n d r a f t i n g t h e covenant i n o r d e r t o a v o i d adverse r e p e r c u s s i o n s
on t h e j u d i c i a l and a d m i n i s t r a t i v e processes o f i n d i v i d u a l S t a t e s . I n fact,
a r t i c l e hi o f t h e d r a f t covenant, r e q u i r i n g p r i o r e x h a u s t i o n o f domestic remedies
b e f o r e a c t i o n b y t h e human r i g h t s committee, was m o t i v a t e d b y t h a t c o n s i d e r a t i o n .
70. The covenant was unique i n t h a t S t a t e s p a r t i e s were t o undertake specific
o b l i g a t i o n s t o w a r d t h e i r own n a t i o n a l s . V i o l a t i o n s o f those o b l i g a t i o n s w o u l d
n o t be t h e same as i n t h e case o f o t h e r t y p e s o f c o n v e n t i o n s which were s e l f -
r e g u l a t i n g i n t h e m a t t e r o f i m p l e m e n t a t i o n and where a b r e a c h o f any commitment
by a S t a t e p a r t y a d v e r s e l y a f f e c t e d o t h e r S t a t e s p a r t i e s and i m p e l l e d them t o t a k e
r e t a l i a t o r y measures. A v i o l a t i o n o f t h e covenant b y a S t a t e p a r t y would n o t
cause immediate and d i r e c t i n j u r y t o o t h e r S t a t e s p a r t i e s . The damage w o u l d be
m a i n l y m o r a l , and S t a t e s were u n l i k e l y , t h e r e f o r e , t o i n t e r v e n e . Past
e x p e r i e n c e , e s p e c i a l l y o f t h e m i n o r i t i e s system o f t h e League o f N a t i o n s and t h e
c o m p l a i n t s procedure under t h e ILO c o n s t i t u t i o n , demonstrated that intervention
o f S t a t e s t o r e d r e s s v i o l a t i o n s o f human r i g h t s , even under t r e a t y o b l i g a t i o n s ,
had been n e g l i g i b l e and r a r e l y f r u i t f u l . I t m i g h t a l s o be argued t h a t s i n c e
S t a t e s c o u l d a l r e a d y b r i n g cases o f v i o l a t i o n s o f human r i g h t s t o t h e
U n i t e d N a t i o n s , t h e r e was no need f o r any i m p l e m e n t a t i o n measures a t a l l u n l e s s
t h e y i n c l u d e d o t h e r means o f i n i t i a t i n g proceedings.
71. I t was observed t h a t , w i t h o u t p r o v i s i o n f o r a d d i t i o n a l machinery g o i n g beyond
S t a t e - t o - S t a t e c o m p l a i n t s , t h e covenants w o u l d n o t be e f f e c t i v e l y implemented.
S t a t e s w o u l d be u n w i l l i n g t o i n t e r f e r e i n m a t t e r s w h i c h d i d n o t concern them or
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t h e i r own c i t i z e n s , and t h e y would, i n g e n e r a l , be r e l u c t a n t t o l a y charges a g a i n s t

o t h e r S t a t e s , e s p e c i a l l y a g a i n s t those w i t h whom t h e y were i n f r i e n d l y r e l a t i o n s
or bound b y p o l i t i c a l , economic o r o t h e r t i e s and agreements. A State might also
be c h a r y o f a c c u s i n g another S t a t e e i t h e r because o f a d e s i r e t o remain on good
terms w i t h t h a t S t a t e o r f o r f e a r o f r e t a l i a t i o n . I n o t h e r cases, S t a t e s m i g h t
sponsor c o m p l a i n t s f o r propaganda purposes t o s t i r up t r o u b l e i n o t h e r S t a t e s ,
and i f t h e r e l a t i o n s between two S t a t e s were s t r a i n e d , any c o m p l a i n t made b y one
a g a i n s t t h e o t h e r might be viewed w i t h some s k e p t i c i s m . The u n l i k e l i h o o d o f
S t a t e s t a k i n g t h e i n i t i a t i v e had been borne o u t b y t h e f a c t t h a t t h e atmosphere
had n o t been f a v o u r a b l e t o a p r o p o s a l p u t f o r w a r d f o r i n s e r t i o n i n t h e covenant
o f a s p e c i a l a r t i c l e t o t h e e f f e c t t h a t S t a t e s p a r t i e s w o u l d n o t c o n s i d e r any
steps t a k e n b y another S t a t e p a r t y under a r t i c l e ho as an u n f r i e n d l y a c t .
72. A system based s o l e l y on S t a t e c o m p l a i n t s m i g h t , moreover, endanger
i n t e r n a t i o n a l peace and u n d e r s t a n d i n g , r a i s e d i f f i c u l t i e s f o r aggrieved citizens
b y r e q u i r i n g them t o secure t h e a s s i s t a n c e o f f o r e i g n governments, and r e s u l t i n
t e n s i o n and c o n f l i c t s . P o l i t i c a l f a c t o r s and c o n s i d e r a t i o n s o f n a t i o n a l p r e s t i g e
m i g h t a l s o be i n t r o d u c e d i n t o d i s p u t e s . I n t h i s connexion, m e n t i o n was made
o f m i n o r i t i e s , who m i g h t be compelled, i f d i s s a t i s f i e d , t o seek t h e s u p p o r t o f a
f o r e i g n S t a t e w i t h a l l t h e grave consequences o f such a c t i o n . I n some cases, such
c o m p l a i n t s m i g h t be used i n o r d e r t o encourage i r r e d e n t a among t h e heterogeneous
p a r t o f a p o p u l a t i o n , w h i c h m i g h t t u r n t h e covenant i n t o an i n s t r u m e n t o f
i n t e r n a t i o n a l s t r i f e and c o n t r o v e r s y .

73- The view was expressed t h a t a covenant w h i c h r e c o g n i z e d that the r i g h t s

c o n t a i n e d t h e r e i n d e r i v e d f r o m t h e i n h e r e n t d i g n i t y o f t h e human p e r s o n must g i v e
t h e i n d i v i d u a l human b e i n g t h e b a s i c r i g h t t o p r o t e s t when h i s d i g n i t y was
impaired. A s p e c i a l p l e a was made t o a l l o w non-governmental o r g a n i z a t i o n s having
c o n s u l t a t i v e s t a t u s w i t h t h e Economic and S o c i a l C o u n c i l t h e r i g h t o f p e t i t i o n .
Non-governmental o r g a n i z a t i o n s had p l a y e d a v a l u a b l e p a r t i n t h e p r o m o t i o n o f
human r i g h t s , b o t h n a t i o n a l l y and i n t e r n a t i o n a l l y . They w o u l d o f n e c e s s i t y be
v e r y c a u t i o u s i n l o d g i n g a c o m p l a i n t , because t h e y w o u l d be exposed t o t h e
c r i t i c i s m n o t o n l y o f t h e i r own members b u t a l s o o f t h e Economic and S o c i a l C o u n c i l ,
w h i c h c o u l d d e p r i v e them o f t h e i r c o n s u l t a t i v e s t a t u s . There were a l s o c e r t a i n
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advantages i n g r a n t i n g t h e r i g h t o f p e t i t i o n t o such o r g a n i z a t i o n s . Citizens o f

a S t a t e w h i c h i n f r i n g e d t h e covenant would r a r e l y be i n a p o s i t i o n t o lodge
p e t i t i o n s . f o r f e a r o f b e i n g charged w i t h b e t r a y i n g and i n d i c t i n g t h e i r own
governments. I f t h e y would o n l y c o m p l a i n t h r o u g h f o r e i g n governments, t h e y m i g h t
expose themselves t o t h e charge o f t r e a s o n and t o grave p e r s o n a l danger i n t h e i r own
country. I n such cases, i n t e r n a t i o n a l non-governmental o r g a n i z a t i o n s , w h i c h owed
no a l l e g i a n c e t o a p a r t i c u l a r S t a t e and w h i c h were bound t o d e f e n d t h e i n t e r e s t s
o f humanity as a whole, c o u l d make a v a l u a b l e c o n t r i b u t i o n .

Proposals on t h e r i g h t o f p e t i t i o n and o t h e r means o f i n i t i a t i n g p r o c e e d i n g s

7^. V a r i o u s procedures f o r e x t e n d i n g t h e r i g h t t o i n i t i a t e p r o c e e d i n g s b e f o r e t h e
human r i g h t s committee were suggested. Some u n c o n d i t i o n a l l y f a v o u r e d t h e r i g h t
o f i n d i v i d u a l s , groups and non-governmental o r g a n i z a t i o n s t o p e t i t i o n . Some
t h o u g h t t h a t o n l y a g g r i e v e d persons d i r e c t l y a f f e c t e d b y a v i o l a t i o n s h o u l d have
the right. Others f e l t t h a t t h e r i g h t o f p e t i t i o n s h o u l d be g r a n t e d t o
non-governmental o r g a n i z a t i o n s o r o n l y t o c e r t a i n s e l e c t e d non-governmental
o r g a n i z a t i o n s , e s p e c i a l l y those h a v i n g c o n s u l t a t i v e s t a t u s w i t h t h e Economic and
Social Council. Another view f a v o u r e d empowering t h e committee t o a c t on i t s
own m o t i o n . Some advocated t h a t o n l y t h e r i g h t o f communicating t o t h e committee
s h o u l d be r e c o g n i z e d and t h a t a c t i o n t h e r e a f t e r be l e f t e i t h e r t o t h e i n i t i a t i v e
o f t h e committee o r t h e S t a t e s p a r t i e s . One view was t h a t a h i g h commissioner
( a t t o r n e y - g e n e r a l ) s h o u l d be a p p o i n t e d whose d u t i e s would be t o r e c e i v e charges
17/

f r o m any source w i t h a u t h o r i t y t o i n s t i t u t e p r o c e e d i n g s b e f o r e t h e committee.-'

75- The t h r e e p r o p o s a l s mentioned below were r e j e c t e d , w h i l e t h e f o u r t h , w h i c h
18/
was t h e l a s t p r o p o s a l s u b m i t t e d , was w i t h d r a w n . The f i r s t t e x t was as f o l l o w s : '
The committee may i n i t i a t e an e n q u i r y on r e c e i p t o f c o m p l a i n t s r e c e i v e d
e i t h e r f r o m i n d i v i d u a l s , o r f r o m groups, o r f r o m non-governmental
organizations.

17/ See a l s o paragraphs 28-30 below.

18/ ESC ( X I I I ) , s u p p l . 9, p a r a . Qh.
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76. The second p r o p o s a l was t o add t h e f o l l o w i n g paragraphs t o a r t i c l e 40 .19/

The committee s h a l l a l s o have t h e r i g h t t o t a k e t h e i n i t i a t i v e i n cases

where i t r e c o g n i z e s t h a t non-observance o f any p r o v i s i o n s o f t h i s covenant
i s s e r i o u s enough.

The committee s h a l l have t h e r i g h t t o r e c e i v e and c o n s i d e r communications

c o n c e r n i n g t h e non-observance o f any p r o v i s i o n b y S t a t e s p a r t i e s t o t h e
covenant f r o m :

( a ) Non-governmental o r g a n i z a t i o n s i n c o n s u l t a t i v e r e l a t i o n s h i p w i t h
t h e Economic and S o c i a l C o u n c i l ;

( b ) Groups o f i n d i v i d u a l s and i n d i v i d u a l s , who a r e i n j u r e d p a r t i e s ,

t h r o u g h one o f . t h e non-governmental o r g a n i z a t i o n s r e f e r r e d t o i n
sub-paragraph ( a ) above.

The committee s h a l l determine t h e _ r u l e s c o n c e r n i n g t h e r e c e i v a b i l i t y o f

communications r e f e r r e d t o /above/ and o b t a i n t h e a p p r o v a l o f t h e S t a t e s
p a r t i e s t o t h e covenant r e g a r d i n g t h e s e r u l e s .

77- The t h i r d p r o p o s a l , m a i n l y beaed on t h e e x p e r i e n c e o f t h e m i n o r i t i e s system

20/
o f t h e league o f N a t i o n s , was as f o l l o w s : '
The Committee may r e c e i v e , f o r i n f o r m a t i o n , p e t i t i o n s f r o m persons who
complain t h a t t h e y a r e v i c t i m s o f v i o l a t i o n s b y a S t a t e p a r t y t o t h e
covenant o f t h e p r o v i s i o n s o f t h i s covenant.

The Committee may, i f i t sees f i t , approach t h e impugned S t a t e i n order, t o

c l a r i f y t h e i s s u e and may endeavour t o r e a c h a s e t t l e m e n t i t c o n s i d e r s
r e a s o n a b l e b y s e m i - o f f i c i a l n e g o t i a t i o n s w i t h t h e government o f t h a t S t a t e .

When t h e i s s u e has been c l a r i f i e d and t h e r e s u l t s o f t h e committee's

i n t e r v e n t i o n communicated t o t h e S t a t e s p a r t i e s t o t h e covenant, i f one
o r more o f those S t a t e s c o n s i d e r s t h a t i t s h o u l d make a f o r m a l charge o f
v i o l a t i o n o f t h e covenant, t h e committee s h a l l a c t as a c o n c i l i a t o r y organ.

78. The f o u r t h p r o p o s a l , w h i c h was based on t h e i d e a t h a t t h e i n i t i a t i o n o f

p r o c e e d i n g s would s t i l l be l e f t t o S t a t e s p a r t i e s , r e a d as f o l l o w s : ^

19/ ESC ( X V I ) , s u p p l . 8, annex I I I , p a r a s . 132-134.

20/ ESC ( X V I ) , s u p p l . 8, annex I I I , p a r a s . 131, 136.
21/ ESC ( X V I I I ) , s u p p l . 7, p a r a s . 229-230.
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1. The human r i g h t s committee may r e c e i v e p e t i t i o n s addressed t o t h e

Secretary-General o f the United Rations from:

(a) Any i n d i v i d u a l or group o f i n d i v i d u a l s a l l e g i n g v i o l a t i o n o f

any r i g h t r e c o g n i z e d i n t h e covenant by t h e S t a t e P a r t y o f w h i c h
t h e i n d i v i d u a l or t h e group are n a t i o n a l s ;

(b) Any r e c o g n i z e d non-governmental o r g a n i z a t i o n a l l e g i n g v i o l a t i o n

by any S t a t e P a r t y o f any o f t h e r i g h t s r e c o g n i z e d i n t h e covenant.

2. The committee may, i f i t c o n s i d e r s t h e p e t i t i o n s s e r i o u s enough t o

j u s t i f y t h e e x e r c i s e o f i t s c o n c i l i a t o r y f u n c t i o n s , approach t h e S t a t e
concerned w i t h a view t o a c l a r i f i c a t i o n and s e t t l e m e n t o f t h e i s s u e .

3- The committee s h a l l communicate t o t h e S t a t e s P a r t i e s a r e p o r t on

t h e r e s u l t s o f i t s a c t i o n t a k e n under p a r a g r a p h 2.

79- Eesides t h e reasons g i v e n a g a i n s t any e x t e n s i o n o f t h e r i g h t t o i n i t i a t e

proceedings, these p r o p o s a l s were c r i t i c i z e d on t h e grounds t h a t t h e y d i d n o t
cover p r e c i s e l y t h e q u e s t i o n o f t h e r i g h t s t o be accorded t o t h e i n d i v i d u a l or
t h e o r g a n i z a t i o n , on t h e one hand, and t o the S t a t e s impugned a g a i n s t , on t h e
other; nor d i d t h e y d e a l a d e q u a t e l y w i t h q u e s t i o n s o f procedure and machinery.
There were no c r i t e r i a b y w h i c h t h e committee c o u l d determine whether a m a t t e r
was s e r i o u s enough t o j u s t i f y t h e e x e r c i s e o f i t s c o n c i l i a t o r y f u n c t i o n s .
N o t h i n g w o u l d be more dangerous t h a n t h a t ex p a r t e statements involving questions
of i n t e r n a t i o n a l o b l i g a t i o n s and r e s p o n s i b i l i t i e s o f S t a t e s s h o u l d l e a d t o a c t i o n
by t h e committee. I t was a l s o most u n d e s i r a b l e t h a t S t a t e s p a r t i e s s h o u l d
r e c e i v e , i n t h e f o r m o f a r e p o r t by the committee, i n f o r m a t i o n w h i c h t h e y c o u l d
use as a b a s i s f o r making c o m p l a i n t s t o t h e committee. Moreover, t h e proposals
by-passed p r i o r d i p l o m a t i c exchange between the S t a t e s concerned, w h i c h m i g h t i n
most cases l e a d t o s e t t l e m e n t s o f d i s p u t e s w i t h o u t r e c o u r s e t o t h e committee, and
i n v i t e d t h e i n t e r v e n t i o n o f the committee f r o m the start.
80. On t h e o t h e r hand, i t was c o n s i d e r e d t h a t t h e r e was no r e a l substance i n t h e
v a r i o u s arguments advanced, a g a i n s t t h e r i g h t o f p e t i t i o n . The f e a r t h a t the
r i g h t o f p e t i t i o n w o u l d r e l e a s e a f l o o d o f m a l i c i o u s and groundless complaints
w h i c h m i g h t overwhelm t h e committee and. p a r a l y z e i t s a c t i o n s was n o t borne o u t
e i t h e r by t h e experience o f t h e T r u s t e e s h i p C o u n c i l or o f t h e I n t e r n a t i o n a l
Labour O r g a n i s a t i o n . The r e a l o b j e c t i o n w h i c h c o u l d be l e v e l l e d a g a i n s t the
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p r o p o s a l s was t h e p o s s i b i l i t y o f abuse. While i t was i m p o s s i b l e t o guarantee

any r i g h t a g a i n s t abuse, t h e r e was no reason why adequate safeguards c o u l d n o t be
provided. For example, r u l e s g o v e r n i n g a d m i s s i b i l i t y and s c r e e n i n g o f p e t i t i o n s
w o u l d be p r o v i d e d and, i n t h e view o f some, these r u l e s s h o u l d be approved b y t h e
S t a t e s p a r t i e s , as w e l l as t h e committee. Moreover, under t h e e x i s t i n g
p r o v i s i o n s o f t h e covenant, a m a t t e r c o u l d n o t be b r o u g h t b e f o r e t h e committee
u n t i l a l l p o s s i b l e methods o f r e d r e s s w i t h i n a S t a t e had been exhausted. The
committee was t o be composed o f h i g h l y q u a l i f i e d and d i s t i n g u i s h e d persons who
c o u l d be r e l i e d upon t o show t h e i r good sense and independence.

P r o t o c o l on t h e r i g h t o f i n d i v i d u a l s , groups and non-governmental o r g a n i z a t i o n s

to p e t i t i o n

81. The s u g g e s t i o n t h a t any e x t e n s i o n o f t h e r i g h t t o i n i t i a t e p r o c e e d i n g s s h o u l d

be i n c l u d e d i n a p r o t o c o l o r p r o t o c o l s t o t h e covenant was c o n s i d e r e d b y some t o
be t h e most a p p r o p r i a t e s o l u t i o n i n view o f t h e wide d i v e r g e n c i e s o f o p i n i o n s .
T h i s would make i t p o s s i b l e f o r S t a t e s w h i c h d e s i r e d t o s u b s c r i b e t o a system o f
i n d i v i d u a l and non-governmental p e t i t i o n s t o do so b y becoming p a r t i e s t o t h e
protocol or protocols. A t t h e same t i m e , S t a t e s w h i c h d i d n o t w i s h t o go as f a r
as t h a t , b u t n e v e r t h e l e s s wanted t o undertake t h e o b l i g a t i o n s under t h e covenant
w o u l d be f r e e t o do so. I n t h a t way, advancement i n t h e i n t e r n a t i o n a l p r o t e c t i o n
o f human r i g h t s would n o t be u n d u l y postponed.
82. Others doubted whether t h e proposed procedure w o u l d serve any u s e f u l purpose.
I f most Member S t a t e s r e f u s e d t o r e c o g n i z e t h e r i g h t o f p e t i t i o n i n t h e covenant,
i t was h a r d l y l i k e l y t h a t t h e y w o u l d change t h e i r minds when i t came t o i n s e r t i n g
t h a t r i g h t i n a separate p r o t o c o l o r t h a t t h e y w o u l d be i n c l i n e d t o become p a r t i e s
t o such an i n s t r u m e n t . Such a p r o c e d u r e was a l s o opposed b y t h o s e who d e s i r e d t h e
i n c l u s i o n o f t h e r i g h t i n t h e covenant and b y t h o s e who c o n s i d e r e d t h a t r i g h t
i n d i s p e n s a b l e t o t h e p r o p e r i m p l e m e n t a t i o n o f t h e covenant.
22/
83- A d r a f t p r o t o c o l ' w h i c h was s u b m i t t e d , b u t s u b s e q u e n t l y w i t h d r a w n , was n o t
d i s c u s s e d i n any d e t a i l .

22/ For t e x t see ESC ( X I V ) , s u p p l . h, annex 111 A.

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H i g h Commissioner ( A t t o r n e y - G e n e r a l ) f o r Human R i g h t s

84. The p r o p o s a l f o r t h e e s t a b l i s h m e n t o f a permanent organ known as " t h e

' U n i t e d N a t i o n s H i g h Commissioner ( A t t o r n e y - G e n e r a l ) f o r Human R i g h t s " has been
s u b m i t t e d as a separate means o f i m p l e m e n t i n g t h e covenant, as f u r t h e r measures
o f i m p l e m e n t a t i o n f o r i n c l u s i o n i n t h e d r a f t covenant and as amendments t o t h e
d r a f t p r o p o s a l f o r a p r o t o c o l on p e t i t i o n s . The l a t e s t p r o p o s a l was t o i n c l u d e
the p r o v i s i o n s i n t h e covenant and was based, i n t e r a l i a , on t h e f o l l o w i n g
p r i n c i p l e s -r^l

(a) The h i g h commissioner s h a l l be a p p o i n t e d b y t h e General Assembly

f r o m n o m i n a t i o n s made b y S t a t e s p a r t i e s t o t h e covenant.

(b ) He s h a l l c o l l e c t and examine i n f o r m a t i o n w i t h r e g a r d t o a l l m a t t e r s
r e l e v a n t t o t h e observance and enforcement o f t h e covenant b y S t a t e s
p a r t i e s and ask f o r p e r i o d i c r e p o r t s f r o m them on t h e i m p l e m e n t a t i o n o f
the covenant.

( c ) He may, w i t h t h e agreement o f S t a t e s p a r t i e s concerned, conduct on

the s p o t s t u d i e s and i n q u i r i e s .

(d) He may i n i t i a t e c o n s u l t a t i o n w i t h and make s u g g e s t i o n s and

recommendations f o r i m p l e m e n t a t i o n t o S t a t e s p a r t i e s .

( e ) He may r e c e i v e and examine c o m p l a i n t s o f a l l e g e d v i o l a t i o n s o f

human r i g h t s f r o m i n d i v i d u a l s , n a t i o n a l and i n t e r n a t i o n a l non-governmental
o r g a n i z a t i o n s and i n t e r - g o v e r n m e n t a l o r g a n i z a t i o n s under c e r t a i n c o n d i t i o n s ,
and conduct p r e l i m i n a r y I n v e s t i g a t i o n s on c o m p l a i n t s w i t h a view t o
d e c i d i n g whether f u r t h e r a c t i o n was j u s t i f i e d .

( f ) He may decide t o t a k e a c t i o n on c o m p l a i n t s under t h e procedures

prescribed e i t h e r by n e g o t i a t i o n w i t h States p a r t i e s or by r e f e r r a l o f
a m a t t e r t o t h e human r i g h t s committee, i f i n h i s o p i n i o n n e g o t i a t i o n s
are n o t l i k e l y t o r e s u l t i n a s a t i s f a c t o r y s o l u t i o n o r where n e g o t i a t i o n s
have n o t r e s u l t e d i n such a s o l u t i o n .

(g) He i s t o pay due a t t e n t i o n t o domestic remedies and d i p l o m a t i c and

U n i t e d N a t i o n s procedures.

23/ For t e x t see ESC ( X V I I I ) , s u p p l . 7, annex I I I . D u r i n g t h e second p a r t o f

the f i r s t r e a d i n g o f t h e d r a f t covenants a t t h e n i n t h s e s s i o n o f t h e General
Assembly t h e d e l e g a t i o n o f Uruguay s u b m i t t e d an amendment f o r t h e i n s e r t i o n
o f t h i s p r o p o s a l i n p a r t I V o f t h e d r a f t covenant on c i v i l and p o l i t i c a l
rights. See GA ( I X ) , annexes a . i . 5 8 , A/C.3/L.U2+.
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(h) He i s t o a p p o i n t h i s own s t a f f and, w i t h t h e consent o f t h e S t a t e s

p a r t i e s concerned, he may a p p o i n t r e g i o n a l commissioners who s h a l l , under
h i s d i r e c t i o n and s u p e r v i s i o n , a s s i s t him i n t h e performance o f h i s
functions.

( i ) He i s t o submit annual and, i f necessary, special reports t o the

General Assembly.

85. The o p i n i o n was expressed t h a t i t was e s s e n t i a l t o p r o v i d e f o r an e f f e c t i v e

system o f i m p l e m e n t i n g t h e covenant. I t was e v i d e n t t h a t c o m p l a i n t s b y S t a t e s
i
would n o t a d e q u a t e l y meet t h i s o b j e c t i v e . Nor was t h e r e any g e n e r a l agreement
on a l l o w i n g p e t i t i o n s f r o m i n d i v i d u a l s , groups and non-governmental o r g a n i z a t i o n s .
Moreover, under t h e covenant t h e o r g a n i z e d i n t e r n a t i o n a l community assumed c e r t a i n
r e s p o n s i b i l i t i e s , and i n o r d e r t o c a r r y o u t t h a t r e s p o n s i b i l i t y , t h e i n t e r n a t i o n a l
community s h o u l d e x e r c i s e some s u p e r v i s o r y f u n c t i o n s . Since t h a t c o u l d n o t he
done a d e q u a t e l y b y e x i s t i n g U n i t e d N a t i o n s organs, i t seemed a p p r o p r i a t e t o
p r o v i d e f o r an i n t e r n a t i o n a l r e p r e s e n t a t i v e who would undertake t h a t t a s k . A
p r a c t i c a l s o l u t i o n would be t o a p p o i n t a s p e c i a l r e p r e s e n t a t i v e o f t h e h i g h e s t
s t a n d i n g and independence who would seek s a t i s f a c t o r y s e t t l e m e n t s t h r o u g h
n e g o t i a t i o n s w i t h S t a t e s concerned and, where s u f f i c i e n t grounds f o r so d o i n g
e x i s t e d , he would p r e s e n t t h e case b e f o r e t h e human r i g h t s committee. Like the
p u b l i c p r o s e c u t o r i n n a t i o n a l l e g a l systems, t h e h i g h commissioner would
r e p r e s e n t t h e i n t e r n a t i o n a l community, n o t t h e a g g r i e v e d persons; however, t h e
l a t t e r would submit c o m p l a i n t s r e g a r d i n g v i o l a t i o n s o f t h e covenant t h r o u g h him
and n o t t h r o u g h f o r e i g n S t a t e s . I t would a l l a y any l e g i t i m a t e f e a r s c o n c e r n i n g
the r e c e i p t o f p e t i t i o n s f r o m o t h e r sources t h a n S t a t e s . While t h e committee's
f u n c t i o n was t o c o n s i d e r c o m p l a i n t s , i t c o u l d do so s a t i s f a c t o r i l y o n l y i f i t
were n o t i n u n d a t e d b y c o m p l a i n t s and i f c o m p l a i n t s had been s u b j e c t e d t o a
p r e l i m i n a r y s c r e e n i n g and procedure. The proposed procedure would e l i m i n a t e t h e
d i f f i c u l t i e s , both p o l i t i c a l and p r a c t i c a l , w h i c h had so b e s e t t h e i m p l e m e n t a t i o n
procedure.'

2k/ A t t e n t i o n i s drawn t o t h e memorandum s u b m i t t e d b y t h e d e l e g a t i o n o f Uruguay

t o t h e T h i r d Committee o f t h e General Assembly e n t i t l e d t h e "Easis o f t h e
P r o p o s a l t o e s t a b l i s h a U n i t e d N a t i o n s A t t o r n e y - G e n e r a l f o r Human R i g h t s " ,
i n GA ( V I ) , annexes a . i . 29, A/C.3/564.
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86. A p a r t f r o m t h e o b j e c t i o n s mentioned above c o n c e r n i n g any p r o p o s a l s going

beyond S t a t e c o m p l a i n t s , a number o f o b j e c t i o n s r a i s e d a g a i n s t t h i s p r o p o s a l may
be mentioned.. One p o i n t o f view was t h a t t h e p r o p o s a l was premature ; i t was
n o t p r a c t i c a l i n view o f t h e e x i s t i n g p o l i t i c a l s i t u a t i o n . Some c o n s i d e r e d that
the p r o p o s a l was b o t h ambiguous and t o o a m b i t i o u s . I t was ambiguous because i t
was n o t c l e a r whether t h e a t t o r n e y - g e n e r a l w o u l d d e t r a c t f r o m t h e p o s i t i o n o f t h e
human r i g h t s committee o r s t r e n g t h e n t h e committee. I t was a m b i t i o u s because i t
v e s t e d i n t h e a t t o r n e y - g e n e r a l c e r t a i n e x t r e m e l y i m p o r t a n t f u n c t i o n s , some o f
which b e l o n g e d t o t h e Commission on Human R i g h t s , w h i l e o t h e r s w o u l d come w i t h i n
the competence o f t h e human r i g h t s committee. I t was t h o u g h t t h a t t h e
a t t o r n e y - g e n e r a l ' s f u n c t i o n s s h o u l d m e r e l y be t o p r e p a r e t h e committee's work,
t o r e c e i v e c o m p l a i n t s and s i f t them so as t o p r e v e n t t h e committee f r o m
r e c e i v i n g c o m p l a i n t s n o t w i t h i n i t s competence o r n o t i n k e e p i n g w i t h t h e g e n e r a l
interest. Others f e l t t h a t p e t i t i o n s c o u l d be screened j u s t as i m p a r t i a l l y b y
the committee w i t h t h e a s s i s t a n c e , i f r e q u i r e d , o f t h e U n i t e d N a t i o n s Secretariat.
Some t h o u g h t t h a t i n p r a c t i c e t h e a t t o r n e y - g e n e r a l w o u l d never be a b l e t o c o n s i d e r
a l l t h e c o m p l a i n t s , w h i c h because o f t h e e x i s t e n c e o f h i s o f f i c e w o u l d be
r e c e i v e d i n large_numbers, many o f them b e i n g p r o b a b l y d e v o i d o f any t r u e b a s i s .
Another o p i n i o n was t h a t i t was d o u b t f u l whether any i n d i v i d u a l c o u l d be f o u n d t o
fill t h e post adequately. Such a person m i g h t a l s o be v e s t e d w i t h t o o much
authority. I t was p r e f e r a b l e t o r e l y on a committee on w h i c h a l l t h e areas and
the d i f f e r e n t j u d i c i a l and c u l t u r a l systems o f t h e w o r l d would be r e p r e s e n t e d .

25/
C o l l e c t i o n o f i n f o r m a t i o n and a c t i o n t h e r e o n b y t h e c o m m i t t e e '
87. The f o l l o w i n g p r o p o s a l , which was r e j e c t e d , was s u b m i t t e d :

The committee s h a l l s u p e r v i s e t h e observance o f t h e p r o v i s i o n s o f

the covenant. I n t h i s purpose i t s h a l l c o l l e c t i n f o r m a t i o n w i t h r e g a r d
t o a l l m a t t e r s r e l e v a n t t o t h e observance and enforcement o f human r i g h t s
as d e f i n e d i n t h e covenant w i t h i n t h e S t a t e s p a r t i e s t o t h e covenant.
Such i n f o r m a t i o n w i l l i n c l u d e l e g i s l a t i o n and j u d i c i a l d e c i s i o n s .

On r e c e i p t o f i n f o r m a t i o n t h e committee can i n i t i a t e an e n q u i r y i f
i t t h i n k s necessary.

25/ E/CN.ySR.191; E/CN.4/474 ? a r t . 22 Aj ESC ( X I ) , s u p p l . 5, p a r a . 43 and

annex I I .
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88. I n s u p p o r t o f t h e p r o p o s a l i t was p o i n t e d o u t t h a t t h e f u n c t i o n s o f t h e
committee under a r t i c l e ho were e x t r e m e l y l i m i t e d , and i t was d o u b t f u l whether
t h e p r o v i s i o n s o f t h e covenant w o u l d t h e r e b y be p r o p e r l y implemented. The
p r o p o s a l w o u l d a l l o w t h e committee t o s u p e r v i s e t h e way i n w h i c h v a r i o u s S t a t e s
f u l f i l l e d t h e p r o v i s i o n s o f t h e covenant. On r e c e i p t o f i n f o r m a t i o n t h e
committee m i g h t i n i t i a t e an e n q u i r y and i n f o r m t h e S t a t e concerned t h a t t h e r e had
been a v i o l a t i o n . I t was b e t t e r i n t h a t way t o p r e v e n t a v i o l a t i o n o f human
r i g h t s t h a n t o r e p a i r t h e damage once a v i o l a t i o n had a l r e a d y been committed.
I t was contended t h a t t h e i n f o r m a t i o n o b t a i n a b l e i n t h e Yearbook on Human R i g h t s
was i n s u f f i c i e n t and t h a t t h e Commission on Human R i g h t s d i d n o t e n j o y t h e
necessary power t o s u p e r v i s e t h e observance o f t h e p r o v i s i o n s o f t h e covenant.
89- The proposed t e x t was opposed on t h e grounds t h a t t h e s u p e r v i s o r y f u n c t i o n s
p r o v i d e d f o r were t o o e x t e n s i v e , t h a t t h e committee's f u n c t i o n s s h o u l d be
c o - o r d i n a t e d w i t h t h e o t h e r a c t i v i t i e s o f t h e U n i t e d N a t i o n s and t h a t i t was
b e t t e r t o w a i t u n t i l t h e committee had gained a c e r t a i n amount o f experience
and n o t t o j e o p a r d i z e i t s chances o f w o r k i n g s u c c e s s f u l l y , w h i c h would l a r g e l y
depend on t h e g o o d w i l l o f States p a r t i e s . The view was expressed t h a t t h e
committee's l i m i t e d f u n c t i o n s and procedures were i n c o m p a t i b l e w i t h t h e proposed
power o f c o n t r o l . I f t h e committee's t a s k s were n o t c o - o r d i n a t e d w i t h t h e
a c t i v i t i e s o f t h e organs o f t h e U n i t e d N a t i o n s and t h e S e c r e t a r i a t , i t w o u l d
p r e j u d i c e t h e work o f a l l . I t was p o i n t e d o u t t h a t t h e Yearbook on Human R i g h t s
i n c l u d e d a l l t h e necessary i n f o r m a t i o n , and i t s c o n t e n t s c o u l d be changed t o
i n c l u d e such f u r t h e r m a t e r i a l as was t h o u g h t necessary o r u s e f u l . The
r e s p o n s i b i l i t y o f t h e Commission on Human R i g h t s , b y v i r t u e o f A r t i c l e 68 o f t h e
C h a r t e r , w h i c h r e l a t e d t o a l l Member S t a t e s and n o t o n l y t o S t a t e s p a r t i e s t o t h e
covenant, s h o u l d a l s o be t a k e n i n t o a c c o u n t . S t a t e s were u n l i k e l y t o a c c e p t a
p r o v i s i o n empowering t h e committee t o i n i t i a t e e n q u i r y w i t h o u t knowing t h e
c o n d i t i o n s under w h i c h i t was t o be e x e r c i s e d . Moreover, t o a u t h o r i z e t h e
committee t o i n i t i a t e e n q u i r i e s w o u l d p r e v e n t i t f r o m s a t i s f a c t o r i l y fulfilling
i t s mission o f c o n c i l i a t i o n .
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Provisions concerning f u t u r e extension o f t h e functions o f the committee'

90. On v a r i o u s occasions i t was proposed t h a t no p r o v i s i o n i n t h e covenant s h o u l d

he c o n s t r u e d as p r e v e n t i n g t h e committee f r o m d e a l i n g w i t h any m a t t e r c o n c e r n i n g
a l l e g e d v i o l a t i o n s o f human r i g h t s b y a S t a t e p a r t y t o an i n t e r n a t i o n a l
i n s t r u m e n t , o t h e r t h a n t h e covenant, w h i c h r e c o g n i z e d t h e competence o f t h e
committee t o examine c o m p l a i n t s f r o m o t h e r S t a t e s p a r t i e s t o t h e s a i d i n s t r u m e n t
or f r o m sources o t h e r t h a n S t a t e s . Such a p r o v i s i o n w o u l d have r e c o g n i z e d t h e
competence o f t h e committee t o d e a l w i t h m a t t e r s a r i s i n g o u t o f o t h e r
i n t e r n a t i o n a l instruments. However, no such p r o p o s a l s were adopted.
91. The p o s s i b i l i t y o f r e c o u r s e t o t h e good o f f i c e s o f t h e committee s h o u l d
not be r u l e d o u t , i t was u r g e d , i n cases where S t a t e s f e l t t h a t t h e committee,
though unconnected w i t h o t h e r i n s t r u m e n t s t o w h i c h t h e y were p a r t i e s , w o u l d
p r o v i d e them w i t h guarantees o f independence. S i n c e , moreover, p r o v i s i o n s
r e l a t i n g t o p e t i t i o n s f r o m i n d i v i d u a l s , groups and non-governmental o r g a n i z a t i o n s
were n o t l i k e l y t o be approved now o r r a t i f i e d b y any s u b s t a n t i a l number o f S t a t e s ,
the door s h o u l d a t l e a s t be l e f t open f o r a p o s s i b l e f u t u r e r e c o g n i t i o n o f t h e
competence o f t h e committee t o c o n s i d e r c o m p l a i n t s f r o m such sources t o t h e
e x t e n t t h a t S t a t e s would so agree i n o t h e r i n s t r u m e n t s .
92. On t h e o t h e r hand, t h e o p i n i o n was expressed t h a t t h e r e was no reason f o r
i n c l u d i n g such a p r o v i s i o n , s i n c e t h e r e were no o b s t a c l e s t o b a r f u t u r e
agreements, such as a p r o t o c o l t o t h e covenant c o n c e r n i n g p e t i t i o n s and because
the U n i t e d M a t i o n s , w h i c h i n any event w o u l d have t o a u t h o r i z e t h e e x t e n s i o n o f
the committee's f u n c t i o n s , would always be f r e e t o t a k e such s t e p s as i t deemed
f e a s i b l e and a p p r o p r i a t e . There was a l s o t h e p o s s i b i l i t y t h a t g e n e r a l p r o v i s i o n s
a l o n g t h e l i n e s c o n t e m p l a t e d m i g h t be m i s c o n s t r u e d and t h e r e m i g h t be p o s s i b l e
conflicts i n interpretation. Moreover, i t w o u l d be necessary t o s p e c i f y t h e
manner i n w h i c h t h e committee w o u l d e x e r c i s e i t s new f u n c t i o n s and t h e scope
o f t h e competence w i t h w h i c h i t would t h u s be i n v e s t e d .

26/ E/CNA/SR.243, 245, 249, 344, 357, , 385, 386, 434-437; //560/Rev.l,
617/633, 634, 634/Rev.lj E/CN.4/L,235/Rev.3, 278, 342, 342/Rev.l;
ESC ( X I I I ) , s u p p l . 9, p a r a . 85 and annex I I ; ESC (XVI), s u p p l . 8,
p a r a . 175 and annex I I I , p a r a s . 169, 173; ESC ( X V I I I ) , s u p p l . 7,
p a r a s . 231-232, 241-242.
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Matters r e l a t i n g t o the r i g h t o f s e l f - d e t e r m i n a t i o n - '

93. O p i n i o n was d i v i d e d on t h e q u e s t i o n whether t h e committee s h o u l d he

empowered under a r t i c l e 40 t o c o n s i d e r m a t t e r s a r i s i n g o u t o f a r t i c l e 1 o f
t h e d r a f t covenant which r e l a t e s t o t h e r i g h t o f s e l f - d e t e r m i n a t i o n . A
p r o p o s a l t o exclude m a t t e r s a r i s i n g o u t o f a r t i c l e 1 f r o m b e i n g s u b m i t t e d t o
t h e committee was, however, r e j e c t e d .
94. I n s u p p o r t o f t h e e x c l u s i o n o f a r t i c l e 1 f r o m t h e p u r v i e w o f a r t i c l e 40,
i t was u r g e d t h a t a d i s t i n c t i o n s h o u l d be made between r i g h t s o f i n d i v i d u a l s
c o n c e r n i n g t h e i r r e l a t i o n s w i t h t h e i r own government o r w i t h a n o t h e r government,
and c o l l e c t i v e r i g h t s i n v o l v i n g grave i n t e r n a t i o n a l p o l i t i c a l problems, such
as t h e r i g h t o f s e l f - d e t e r m i n a t i o n . I t was p o i n t e d o u t t h a t a c o n c i l i a t i o n
committee o f a n o n - p o l i t i c a l n a t u r e composed o f members s p e c i a l i z i n g i n q u e s t i o n s
o f i n d i v i d u a l r i g h t s w o u l d possess n e i t h e r t h e q u a l i f i c a t i o n s n o r t h e means
t o deal w i t h disputes a r i s i n g out o f the r i g h t of s e l f - d e t e r m i n a t i o n . I t was
emphasized t h a t i n t h e p a s t such d i s p u t e s had l e d t o many upheavals and
annexations b y o t h e r t h a n p e a c e f u l means, and q u e s t i o n s r e l a t i n g t o n a t i o n a l
u n i t y and even t h e c o n t i n u e d e x i s t e n c e o f S t a t e s m i g h t be i n v o l v e d . The
committee c o u l d h a r d l y d e a l w i t h such q u e s t i o n s as t h e s e c e s s i o n and t h e r e u n i o n
o f p e o p l e s , such q u e s t i o n s b e i n g o f a d i f f e r e n t n a t u r e f r o m those r e l a t i n g , f o r
example, t o m a t t e r s a r i s i n g o u t o f t h e r i g h t t o a f a i r t r i a l o r t o non
discrimination. Moreover, i m p l e m e n t a t i o n o f t h e p r i n c i p l e o f s e l f - d e t e r m i n a t i o n
had t o be c o n s i d e r e d i n t h e l i g h t o f t h e C h a r t e r p r o v i s i o n s , i n c l u d i n g t h e powers
of o t h e r U n i t e d N a t i o n s organs, and a t t e m p t s s h o u l d n o t be made i n d i r e c t l y t o
r e v i s e t h e o b l i g a t i o n s assumed under t h e C h a r t e r . Those who were opposed t o
t h e i n c l u s i o n o f t h e f i g h t o f s e l f - d e t e r m i n a t i o n i n t h e d r a f t covenant
r e i t e r a t e d t h e i r view t h a t , w h i l e t h e y s u p p o r t e d t h e p r i n c i p l e o f s e l f -
determination, n e i t h e r a r t i c l e 1 nor the p r o v i s i o n s f o r i t s implementation
l a i d down i n a r t i c l e 40 belonged p r o p e r l y i n t h e covenant.

27/ E/CN.4/SR.355, 56, 357, 358, 359, 60, 36I; E/CN.4/L.235/Rev.l, 244;
ESC ( X V I ) , s u p p l . 8, p a r a s . 157-164, and annex I I I , p a r a s . 126, 128, 137-
See a l s o under a r t i c l e 48.
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95- On the other hand, the view was expressed that there vas no reason why a
d i s t i n c t i o n should he made between the r i g h t of self-determination and other
rights of a p o l i t i c a l nature included i n the covenant. I t was contended that
the members of the committee were t o be persons of the highest i m p a r t i a l i t y and
distinction, and there was no reason why the committee should not he entrusted
with the implementation of one of the most fundamental human rights i n the
covenant. Attention was drawn i n particular to a r t i c l e 1, paragraph 3,
providing f o r permanent sovereignty of peoples over t h e i r natural wealth and
resources, which stipulated that " i n no case may a people be deprived of i t s
own means of subsistence on the grounds of any rights that may be claimed by
other States". I t was considered that the committee should certainly be
empowered to consider breaches of that provision. I t was pointed out that,
in any case, under the proposed procedure the committee's a c t i v i t i e s were
limited to ascertaining facts and drawing conclusions. I t did not include
the carrying out of any investigations or the making of any recommendations.

Serious and urgent cases/

96. I t was suggested that i n cases of grave urgency where l i v e s , l i b e r t i e s and

other rights of persons were d i r e c t l y threatened and i t was necessary to stop
an infringement of the covenant, the committee should be enabled to take speedy
and effective action and i t should be permitted to deviate from the procedure
envisaged i n articles 40 t o 43. I t was pointed out that by the time the
procedure under these articles was f u l l y applied two years might elapse and the
harm done by the infringement might be beyond repair and redress. While the
view was expressed that a r t i c l e 4 l concerning the exhaustion of domestic remedies
should not be applicable i n such cases, since i t might prevent the committee

28/ E/CN.4/SR.209, 210, 211, 212, 214, 240, 355, 356, 358, 359, 3J1;
/-4/515/Add^, 530, para. 71, 530/Add.l, para. 28; ^ 5
\ 5
, / P p h

617/Corr.l 702 no. XIX; E/CN.4/L.227, 235/Rev.l, 246; /.4/ 21 24,

49- ESC ( X I I I ) , suppl. 9, Para. 83, ESC (XVl), suppl. 8, para. 165-167,
and annex I I I , paras. 126, 130, 137; GA (V) annexes a . i . 63,
A/1559, paras. 17, 54; GA ( V I ) , 3rd Com., 360th mtg.
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from g i v i n g immediate e f f e c t t o the p r o v i s i o n s of the covenant, i t was pointed

out t h a t much harm might r e s u l t i f the committee were asked t o invervene i n a
dispute which was s t i l l before the courts on the country immediately concerned
and t h a t nothing should be done t o undermine the v a r i o u s systems of n a t i o n a l
justice.
97 As a r e s u l t of these opinions a t e x t was adopted whereby, s u b j e c t to the
p r o v i s i o n s o f a r t i c l e hi, " i n s e r i o u s cases where human l i f e was endangered",
the committee was, a t the request o f a S t a t e party, t o "deal f o r t h w i t h with the
case on r e c e i p t o f the i n i t i a l communication and a f t e r n o t i f y i n g the S t a t e s
concerned". The phrase " i n s e r i o u s cases where human l i f e was endangered" was
subsequently r e p l a c e d by " i n s e r i o u s and urgent c a s e s " , which i s contained i n
paragraph 3 o f the present t e x t . The p r o v i s i o n i d e n t i f y i n g s e r i o u s cases w i t h
cases i n which human l i f e was endangered was considered too r e s t r i c t i v e . It
was suggested t h a t the procedure should be r e s o r t e d to immediately whenever
human r i g h t s were s e r i o u s l y menaced. I t was pointed out, on the other hand,
t h a t the kind of s p e c i a l procedure contemplated should apply only t o the
e x c e p t i o n a l case where there was a grave t h r e a t t o human l i f e , s i n c e any
v i o l a t i o n o f the covenant could be considered a s e r i o u s and urgent matter.
E e s i d e s , the committee would f i n d i t s e l f i n an impossible p o s i t i o n i f S t a t e s
could, on t h e s o l e p l e a o f urgency, d i s r e g a r d the normal procedure o f diplomatic
n e g o t i a t i o n s envisaged i n a r t i c l e ho.
98. The phrase " i n accordance w i t h the powers conferred on i t /the committed/
by t h i s p a r t o f the covenant" was included i n order t o avoid any i n t e r p r e t a t i o n
empowering t h e committee to take summary a c t i o n on an ex parte a l l e g a t i o n by
one S t a t e . While the matter was t o be d e a l t w i t h e x p e d i t i o u s l y , i t was t o be
d e a l t w i t h according t o t h e powers conferred upon the committee i n the d r a f t
covenant.
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DOCUMENTATION

Organ and Rcords o f O t h e r documents Article

session discussion number
CHR ( I I ) E/CN.4/SR.38, 39; E/CN.4/37, 51, 53, 53/Corr.l,
E/CN.4/AC.4/SR.3, E/CN.4/AC.4/I; ESC ( V I ) ,
5-7 s u p p l . 1 , annex

DC ( I I ) E/CN.4/AC.1/SR.20 E/CN.yAC.l/l9, 27

CHR ( I I I ) E/CN.SR.73, 8 1 E/CN.y82/Adds. 2, 3, 6, 7,

12, 85, 89, 92, 93, 145, 1^7,
151, 153, 154, 154/Corr.l;
ESC ( V I I ) , s u p p l . 2, annex

ESC ( V I I ) E/c.2/88, 98

CHR (V) E/CN.ysR.90, 105, E/CN.4/168, 170, 274/Rev.l, 276,

110, 110/Corr. 1-2, 292, 293, 299, 327; ESC ( I X ) ,
114, 115, 118, 118/ s u p p l . 10, p a r a s . 21, 22,
C o r r . l , 119, 132, annexes I I and I I I
133, 135

ESC ( I X ) E/C.2/185, 19, 202, 211

ESC (X) E/C.2/239

CHR ( V I ) E/CN.4/SR.I68, I69, E/CN.4/353/Adds. 1-9 and 1 1 ,

176-178, 190, 191, 358, p a r a s . 55-59, 366, 419,
200 444, 452, 457, 462, 469, 474,
NGO/4-8, 13; ESC ( X I ) ,
s u p p l . 5, p a r a s . 35, 37, 43,
52, 53, annex I , a r t . 38, and
annex I I

ESC ( X I ) 4 0 4 t h mtg.; E/L.68, p a r a s . 102, 118-119; 38

E/AC.7/SR.147, 149, E/C.2/254/Add.l, 259/Add.l,
150; E/C.2/SR.79, 80, 276
83, 95
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DCCUMEKTATION (cont'd)

Organ and Records o f Other documents Article

session discussion number

GA (V) 317th mtg.; 3rd Com., Annexes, a . i . 63, A/1559, , 38

290th, 291st, 3C0th, p a r a s . l 6 and 54-60; /./534,
301st, 314th, 315th, p a r a . 19; A/C.3/L.81, 91,
3l8th mtgs. 91/Rev.l, 93

ESC ( X I I ) U39th, 440th mtgs. 38

CHR ( V I I ) E/CN.4/SR.209-212, E/CN.4/515/Add.6, 8 and 12-16,

214-215, 240, 243, 530 p a r a s . 53-58, 64, 67, 71,
245, 248 76, 85-105, 552, 555-557, 559,
559/Rev.l, 560, 560/Rev.1, 561,
561/Rev.l, 564, 569, 606,
606/Rev.l, 617, 617/Corr.l,
621, 632-634, 634/Rev.1,
NGO/17, 20, 21, 23-27, 29,
31, 32; ESC ( X I I I ) s u p p l . 9,
p a r a s . 26, 28, 70, 83, 84,
85, annex I , a r t . 52,
and. annexes I I , V and V I I

ESC ( X I I I ) 523rd-525th mtgs. E/C.2/299, 315-317 52

E/C.2/SR.104, IO6

GA ( V I ) 3rd Com., 36oth-36lst, Annexes, a . i . 29, A/2112, 52

363rd-370th, p a r a s . 30-33, 74-89,
405th-409th mtgs. A/C.3/564, A/C.3/L.195,
195/Rev.l-2, I 9 6 ,
196/Rev.l-2

CHR ( V I I I ) E/CN.4/530/Add.l, p a r a s . 17-22, 52

28, 50-64, 641, annex I I , 660,
p a r a s . 5O-7O, 72-74,
NGO/34, 35

ESC (XIV) 665th mtg., 52

E/C.2/SR.121
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BCCUffiKCAION (cont'd)

Organ and Records o f Other documents Article

session discussion number

CHR ( I X ) E/CN.4/SR.343-345, E/CN.4/670, p a r a . 63, 675, 52

55-62, 385, 386 L.227, 231, 235, 235/Rev.l,
409 244, 246, 252, 252/Rev.l, 254,
264, 278, NGO/45, 47-49;
ESC ( X V I ) , s u p p l . 8, p a r a s . 28,
143-167, 175, annex I B ,
a r t . 40, annex I I D, and
annex I I I , p a r a s . 126-137,
I69, 173

ESC ( X V I ) E/C.2/SR.I3I E/C.2/35^, 65 40

GA ( V I I I ) 3rd Com., Annexes, a . i . 12, /./., 40

503rd-506th, 374, 388, A/2573, p a r a s . 81-84
508th-509th,
523rd-524th mtgs.

CHR.(X) E/CN.4/SR.434-437, E/CN.4/694/Add.3, 694/Add.6, 4o

479 696, 702 nos. I l l , V I , V I I ,
X I I , XIV, X V I , X V I I , X V I I I ,
XIX, XX, X X I , X X I I I ,
702/Add.l, n o s . X X V I I , X X V I I I ,
702/Add.2 no. XXIX,
702/Add.6 no. XXXIV, L.3II,
341, 34l/Rev.l, 342. 342/Rev.l,
NGO/54; ESC ( X V I I I ) , s u p p l . 7,
p a r a s . 36, 38, 226-242,
annex I B, a r t . 40, and annex I I I

ESC ( X V I I I ) E/C.2/SR.I44, 145 E/C.2/410 40

GA ( I X ) 3rd Com., 562nd, Annexes, a . i . 58, A/28C8, 40

563rd, 565th-573rd, p a r a s . 32-33, 51
575th-576th,
578th-579th mtgs.
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ARTICLE 4 l
29/
E x h a u s t i o n o f domestic r e m e d i e s '

" N o r m a l l y , t h e Committee s h a l l d e a l w i t h a m a t t e r r e f e r r e d
t o i t o n l y i f a v a i l a b l e domestic remedies have been i n v o k e d
and exhausted i n t h e case. T h i s s h a l l n o t be t h e r u l e where
the a p p l i c a t i o n o f t h e remedies i s u n r e a s o n a b l y p r o l o n g e d . "

99. The phrase " o n l y i f domestic j u d i c i a l and a d m i n i s t r a t i v e remedies have

been i n v o k e d and exhausted," was changed t o r e a d " o n l y i f a v a i l a b l e domestic
remedies have been i n v o k e d and exhausted", i n o r d e r t o t a k e account o f t h e
f a c t t h a t t h e r e m i g h t be remedies o t h e r t h a n " j u d i c i a l and a d m i n i s t r a t i v e " ,
and cases where t h e r e were no a v a i l a b l e remedies. The word " n o r m a l l y "
would a l s o t a k e care o f cases i n w h i c h a S t a t e m i g h t have f a i l e d t o a c t
upon c o m p l a i n t s , i n w h i c h domestic remedies, never h a v i n g been a p p l i e d ,
c o u l d n o t be s a i d t o have been exhausted. Amendments f o r s u b s t i t u t i n g
t h e words " r e s o r t e d t o " o r " u t i l i z e d " f o r t h e word " i n v o k e d " were r e j e c t e d .
The words "unreasonably p r o l o n g e d " , i t was e x p l a i n e d , s h o u l d be u n d e r s t o o d
t o mean " p r o l o n g e d beyond t h e t i m e a c t u a l l y necessary i n p r a c t i c e f o r t h e
i n v e s t i g a t i o n o f a c o m p l a i n t " . I t was a l s o e x p l a i n e d t h a t t h e human r i g h t s
committee would d e t e r m i n e , b e f o r e t a k i n g a c t i o n on a m a t t e r , whether
a v a i l a b l e remedies had been e x h a u s t e d .
100. The importance o f c a r e f u l d r a f t i n g o f t h i s a r t i c l e was emphasized.
On t h e one hand, r e f e r e n c e was made t o t h e a d v i s a b i l i t y o f r e c o n c i l i n g t h e
r e q u i r e m e n t s o f domestic l e g i s l a t i o n and p r a c t i c e s w i t h t h e covenants on
t h e grounds t h a t , i f a l l c o u n t r i e s were t o m a i n t a i n t h a t t h e i r domestic
l e g i s l a t i o n and p r a c t i c e s had p r i o r v a l i d i t y , t h e covenants w o u l d never
be p r o p e r l y implemented. On t h e o t h e r hand, i t was p o i n t e d o u t t h a t t h e
a u t h o r i t y o f n a t i o n a l c o u r t s and i n s t i t u t i o n s m i g h t be p r e j u d i c e d , i f t h e
committee were t o a c t on a m a t t e r w h i c h c o u l d be r e g a r d e d as l e g a l l y settled
when a l l a v a i l a b l e remedies had n o t o n l y been i n v o k e d b u t exhausted, and
i f t h e committee were t o i n t e r v e n e i n some cases w i t h o u t t a k i n g p r o p e r
account o f t h e a c t i o n s o f n a t i o n a l organs.

29/ See a l s o p a r a s , 96-97 above.

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101. The view was a l s o expressed t h a t , a p a r t f r o m t h e e x c e p t i o n p r o v i d e d

f o r i n t h e a r t i c l e , t h e b a s i c i d e a , w h i c h was i n c o n f o r m i t y w i t h g e n e r a l
i n t e r n a t i o n a l p r a c t i c e , was t o p r e v e n t undue i n t e r f e r e n c e b y an
i n t e r n a t i o n a l a u t h o r i t y b e f o r e domestic remedies, i n p a r t i c u l a r as
p r o v i d e d i n a r t i c l e 2, p a r a g r a p h 3, o f t h e covenant, had been a p p l i e d .
T h i s would mean i n p r a c t i c e t h a t t h e i n t e r n a t i o n a l a u t h o r i t y c o u l d n o t
i n t e r f e r e w i t h o r c i r c u m v e n t r e g u l a r domestic remedies. Moreover, national
remedies would n o t n e c e s s a r i l y be by-passed i n cases t a k e n up b y t h e
committee where t h e a p p l i c a t i o n o f t h e remedies was unreasonably
p r o l o n g e d , because c o n s i d e r a t i o n b y t h e committee o f such cases might
r e s u l t i n t h e a p p l i c a t i o n o f domestic remedies, and t h e committee might
not need, c o n s e q u e n t l y , t o proceed any f u r t h e r . A s u g g e s t i o n was made,
however, t h a t i n o r d e r t o p r o v i d e a more e f f e c t i v e s a f e g u a r d a g a i n s t
undue d e l a y , a maximum t i m e l i m i t f o r n a t i o n a l remedies s h o u l d be
s p e c i f i e d i n the article.

DOCUMENTATION

Organ and Records o f Article

session discussion Other documents number

CHR ( V I ) E/CN.SR.190 E/CN.hjh and C o r r . l ; ESC ( X l ) ,

s u p p l . 5 , annex I , a r t . 39

ESC ( X I ) E/L.68, p a r a s . 120-121, E/c.2/259/Add.l 39

GA (V) 3rd Com., 300th- 39

301st mtgs.

( V I I ) E/CN.SR.211, E/CN.V530, p a r a s . 59-62; ESC ( X I I l ) , 39

212, 249 s u p p l . 9 , annex I , a r t . ^h

ESC ( X I I I ) P l e n . 523rd mtg, 5h

CHR (VIII) E/CN.y530/Add.l, p a r a . 25 54

CHR ( I X ) E/CN.SR.387 ESC ( X V I ) , s u p p l . 8 , annex I , 5h

a r t . hi, and annex I I I ,
p a r a s . 138-139

GA ( I X ) 3rd Com., 570th hi

mtg.
/2929
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Page 256

ARTICLE k2

Obtaining o f i n f o r m a t i o n from States

I n any m a t t e r r e f e r r e d t o i t t h e committee may c a l l

upon t h e S t a t e s concerned t o s u p p l y any r e l e v a n t i n f o r m a t i o n .

Obtaining o f i n f o r m a t i o n from States

102. D i s c u s s i o n on t h i s a r t i c l e was m a i n l y concerned w i t h t h e q u e s t i o n o f

i n c l u d i n g a p r o v i s i o n c o n c e r n i n g t h e r i g h t o f t h e committee t o conduct inquiries
or investigations. On t h e e x i s t i n g t e x t i t s e l f , t h e r e was l i t t l e d i s c u s s i o n ,
except f o r t h e o b s e r v a t i o n t h a t t h e p r o v i s i o n would l e a d t o i n t e r v e n t i o n b y t h e
human r i g h t s committee i n m a t t e r s w h i c h f e l l e x c l u s i v e l y w i t h i n n a t i o n a l
jurisdiction.

Inquiries or investigations

103- A p r o p o s a l was made t h a t , i f t h e committee c o n s i d e r e d t h a t t h e

i n f o r m a t i o n s u p p l i e d was n o t s u f f i c i e n t , i t m i g h t , b y a v o t e o f t w o - t h i r d s o f
a l l i t s members, conduct an i n q u i r y w i t h i n t h e m e t r o p o l i t a n area o r n o n - s e l f -
g o v e r n i n g t e r r i t o r i e s i n any S t a t e a g a i n s t which a c o m p l a i n t was made, and t h a t
the S t a t e t h u s complained a g a i n s t s h o u l d a f f o r d f u l l f a c i l i t i e s necessary f o r the
e f f i c i e n t conduct o f t h e i n v e s t i g a t i o n ; i t was r e j e c t e d .
IDh. I n s u p p o r t o f t h e p r o p o s a l , i t was s a i d t h a t t h e committee s h o u l d have
adequate means t o c a r r y o u t i t s f u n c t i o n o f f a c t - f i n d i n g and c o n c i l i a t i o n and
t h a t , t h e r e f o r e , i t s h o u l d n o t o n l y r e c e i v e i n f o r m a t i o n b u t a l s o v e r i f y and
supplement i t when necessary. I t was p o i n t e d o u t t h a t p a s t e x p e r i e n c e i n t h e
U n i t e d N a t i o n s , such as t h a t o f t h e Ad Hoc Committee on S l a v e r y which had s e n t
q u e s t i o n n a i r e s t o governments and r e c e i v e d inadequate r e p l i e s , demonstrated
t h a t , w i t h o u t an i n q u i r y on t h e s p o t , i t was i m p o s s i b l e t o f i n d o u t t h e r e a l
s i t u a t i o n i n r e g a r d t o a p a r t i c u l a r m a t t e r w i t h i n any c o u n t r y . The p r o p o s a l ,
which was o f u n i v e r s a l a p p l i c a t i o n , t o o k account o f c r i t i c i s m s made a g a i n s t
s u g g e s t i o n s f o r c o n f i n i n g i n q u i r i e s t o Non-Self-Governing and T r u s t T e r r i t o r i e s ,
namely, t h a t such a procedure would be d i s c r i m i n a t o r y and m i g h t be c o n t r a r y t o
Charter o b l i g a t i o n s . The p r o p o s a l was p e r m i s s i v e and n o t mandatory. An i n q u i r y
 A/2929
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Page 257

would he i n s t i t u t e d o n l y a f t e r t h e Committee c o n s i d e r e d t h a t a S t a t e complained

a g a i n s t had n o t s u p p l i e d t h e necessary i n f o r m a t i o n and a f t e r a d e c i s i o n had been
t a k e n by a t w o - t h i r d s m a j o r i t y o f a l l t h e members o f t h e committee.
105. The a d o p t i o n o f such procedures was opposed on t h e grounds t h a t t h e y
would i n f r i n g e upon n a t i o n a l s o v e r e i g n t y , would r u n c o u n t e r t o A r t i c l e 2,
paragraph 7, o f t h e C h a r t e r , and m i g h t even be c o n t r a r y t o A r t i c l e 87 o f t h e
Charter, which p r o v i d e d f o r v i s i t i n g missions t o T r u s t T e r r i t o r i e s . I n the
p r e s e n t c i r c u m s t a n c e s , and w i t h o u t some guarantee o f r e c i p r o c i t y and u n i v e r s a l
acceptance, i t was n o t f e a s i b l e ' t o i n s t i t u t e such a new p r o c e d u r e . I t might
d e t e r r a t i f i c a t i o n o f t h e covenant b y S t a t e s , e s p e c i a l l y as i t d i d n o t r e q u i r e
t h e p r i o r consent o f t h e S t a t e concerned. Moreover, i t was u n l i k e l y t h a t such
an i n v e s t i g a t i o n would be s u c c e s s f u l i n e l i c i t i n g t h e f a c t s which a S t a t e had
refused t o disclose. A c o u n t r y w h i c h had f a i l e d t o s u p p l y s u f f i c i e n t information
would h a r d l y v e s t t h e committee b y i t s domestic l a w w i t h t h e powers necessary f o r
a s u c c e s s f u l outcome o f t h e i n q u i r y .
106. The v i e w was expressed, however, t h a t when S t a t e s r a t i f i e d t h e covenant
t h e y d i d so f r e e l y and w i l l i n g l y and were presumed t o have agreed t o such
r e s t r i c t i o n s o f t h e i r s o v e r e i g n t y as m i g h t be i m p l i e d i n t h e covenant. There
was, t h e r e f o r e , no r e a s o n t o e x c l u d e e f f e c t i v e methods f o r i n t e r n a t i o n a l p r o t e c t i o n
o f human r i g h t s . I t was a l s o c l a i m e d t h a t g e n e r a l c r i t e r i a o f i n t e r n a t i o n a l law
i n m a t t e r s o f n a t i o n a l s o v e r e i g n t y were n o t endorsed a t San F r a n c i s c o when
A r t i c l e 2, p a r a g r a p h 7? o f t h e C h a r t e r was adopted. I t had been h e l d on many
occasions b y U n i t e d N a t i o n s organs t h a t m a t t e r s p e r t a i n i n g t o human r i g h t s were
n o t e s s e n t i a l l y w i t h i n t h e domestic j u r i s d i c t i o n o f S t a t e s . To t h e o b j e c t i o n
t h a t t h e p r o p o s a l d i d n o t s p e c i f y t h e d e t a i l e d c o n d i t i o n s under w h i c h i n q u i r i e s
would be conducted, i n c l u d i n g t h e manner i n w h i c h evidence would be t a k e n , i t
was r e p l i e d t h a t t h e committee was n o t i n t e n d e d t o f u n c t i o n l i k e a c o u r t o f l a w .
30/
I n any case, t h e committee was empowered t o p r e s c r i b e i t s own r u l e s o f procedure^^'
and, s i n c e i t s members would be chosen f r o m persons p o s s e s s i n g t h e h i g h e s t
q u a l i f i c a t i o n s , i t c o u l d be r e l i e d upon t o e x e r c i s e i t s powers w i t h complete
independence and i m p a r t i a l i t y .

/ A r t i c l e 39, paragraph 2.
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107. A s u g g e s t i o n t h a t t h e d e c i s i o n t o conduct an i n q u i r y s h o u l d he made b y

a unanimous v o t e o f a l l t h e members o f t h e committee was w i t h d r a w n f o r t h e
r e a s o n t h a t i t would p e r m i t any member o f t h e committee t o d e t e r m i n e t h e f a t e
of a d e c i s i o n . I t was a l s o suggested t h a t i n q u i r i e s c o u l d be conducted w i t h
as much success b y t h e S t a t e s t h e m s e l v e s , a t t h e r e q u e s t o f t h e committee,
t h e r e b y a v o i d i n g any encroachment o n t h e i r s o v e r e i g n t y . B u t i t was doubted
whether t h a t method would r e s u l t i n adequate guarantees o f i m p a r t i a l i t y . Another
p o i n t o f v i e w was t h a t i t m i g h t be b e t t e r t o l e a v e t h e m a t t e r t o t h e S t a t e
complained a g a i n s t , w h i c h would i t s e l f have t h e o p t i o n , under t h e e x i s t i n g
p r o v i s i o n s o f t h e covenant, o f a s k i n g t h e committee t o a r r a n g e t o have t h e
a l l e g a t i o n s i n v e s t i g a t e d on t h e s p o t .

DOCUMENTATION

Organ and Article

session Records o f d i s c u s s i o n Other documents number

CHR ( V I ) E/CN/SR.191 E/CN.4/474, a r t . 2 3 j ESC ( X I ) ,

s u p p l . 5 , annex I , a r t . 4 o

GA ( V ) 3rd Com., 300th and 40

301st mtgs.

CHR ( V I I ) E/CN .4 /SR. 249 E/CN.4/53, paras.70 and 75;

ESC ( X I I l ) , s u p p l . 9 , annex I ,
a r t . 55

GA ( V I ) 3rd Com. 364th, 369th Annexes a . i . 2 9 , A/C.3/L.I9I, 55

371st, 406th, 407th, ' 19l/Rev.l-Rev.3, and A/2112,
4o8th, 409th mtgs. p a r a . 34

CHR ( V I I I ) E/CN.4/530/Add.l, paras.37-46 55

CHR ( I X ) E/CN.4/SR.388, 409 E/CN.4/675, para.28; L.248, 55

269/Add.l, 28O; ESC ( X V I ) ,
s u p p l . 8 , paras.185-189,
annex I , a r t . 4 2 , and annex I I I ,
paras.I85-I89
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English
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ARTICLE 1+3

C o n s i d e r a t i o n b y and r e p o r t o f t h e committee
on a m a t t e r r e f e r r e d t o i t

1. S u b j e c t t o t h e p r o v i s i o n s o f a r t i c l e 1+1, t h e Committee s h a l l
a s c e r t a i n t h e f a c t s and make a v a i l a b l e i t s good o f f i c e s t o t h e
S t a t e s concerned w i t h a v i e w t o a f r i e n d l y s o l u t i o n o f t h e m a t t e r
on t h e b a s i s o f r e s p e c t f o r human r i g h t s as r e c o g n i z e d i n t h i s
Covenant.

2. The Committee s h a l l i n e v e r y case, and i n no event l a t e r t h a n

e i g h t e e n months a f t e r t h e d a t e o f r e c e i p t o f t h e n o t i c e under
a r t i c l e 1+0, draw up a r e p o r t w h i c h w i l l be sent t o t h e S t a t e s
concerned and t h e n communicated t o t h e S e c r e t a r y - G e n e r a l o f t h e
United Nations f o r p u b l i c a t i o n .

3. I f a s o l u t i o n w i t h i n t h e terms o f paragraph 1 o f t h i s a r t i c l e
i s reached t h e Committee s h a l l c o n f i n e i t s r e p o r t t o a b r i e f
statement o f t h e f a c t s and o f t h e s o l u t i o n reached. I f such a
s o l u t i o n i s n o t reached t h e Committee s h a l l draw up a r e p o r t on
t h e f a c t s and s t a t e i t s o p i n i o n as t o whether t h e f a c t s f o u n d
d i s c l o s e a b r e a c h b y t h e S t a t e concerned o f i t s o b l i g a t i o n s under
t h e Covenant. I f t h e r e p o r t does n o t r e p r e s e n t i n whole o r i n
p a r t t h e unanimous o p i n i o n o f t h e members o f t h e Committee, any
member o f t h e Committee s h a l l be e n t i t l e d t o a t t a c h t o i t a separate
opinion. The w r i t t e n and o r a l submissions made b y t h e P a r t i e s t o
t h e case i n accordance w i t h a r t i c l e 39, paragraph 2 ( c ) , s h a l l be
attached t o t h e r e p o r t .

108. T h i s a r t i c l e d e a l s w i t h t h e f u n c t i o n s and procedures o f t h e committee i n

r e s p e c t o f a m a t t e r r e f e r r e d t o i t under a r t i c l e 1+0. D i s c u s s i o n on t h e a r t i c l e
c e n t r e d m a i n l y on t h a t p a r t o f paragraph 1 w h i c h p r o v i d e s t h a t t h e committee
s h a l l make a v a i l a b l e i t s good o f f i c e s t o t h e S t a t e s concerned w i t h a v i e w t o a
f r i e n d l y s o l u t i o n o f t h e m a t t e r on t h e b a s i s o f r e s p e c t f o r human r i g h t s as
r e c o g n i z e d i n t h e covenant, and on paragraph 3 w h i c h d e a l s w i t h t h e n a t u r e o f <the
report.

F u n c t i o n s o f t h e committee

109. The f u n c t i o n s o f t h e committee a r e t o be t h o s e o f f a c t - f i n d i n g and

conciliation. G e n e r a l l y , i t was emphasized -chat t h e work o f t h e committee s h o u l d
n o t be o f a j u d i c i a l o r compulsory character; r a t h e r , i t should c o n s i s t i n t h e
I m p a r t i a l e s t a b l i s h m e n t o f f a c t s and t h e l e n d i n g o f i t s good o f f i c e s . A report
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on t h e f i n d i n g s o f t h e committee and t h e p u b l i c i t y g i v e n t o i t w o u l d he an
e f f e c t i v e means o f e n f o r c e m e n t , s i n c e S t a t e s m i g h t n o t accept any d e c i s i o n o f
the committee as mandatory. The o p i n i o n was e x p r e s s e d , however, t h a t f o r t h e
e f f e c t i v e i m p l e m e n t a t i o n o f t h e c o v e n a n t , t h e d e c i s i o n o f t h e committee s h o u l d
he mandatory and t h a t i t s h o u l d he a u t h o r i z e d t o make recommendations or t o
suggest p o s s i b l e s o l u t i o n s .
110. The l a s t phrase o f p a r a g r a p h 1 p r o v i d e s t h a t t h e ccmmittee s h a l l make
a v a i l a b l e i t s good o f f i c e s t o t h e S t a t e s concerned " w i t h a v i e w t o a f r i e n d l y
s o l u t i o n o f t h e m a t t e r on t h e b a s i s o f r e s p e c t o f human r i g h t s as r e c o g n i z e d
i n t h i s covenant". The c h i e f c o n s i d e r a t i o n was t o p r o v i d e f o r an e x p r e s s i o n
w h i c h w o u l d g i v e r i s e n e i t h e r t o u n c e r t a i n t y n o r t o p o s s i b l e abuse, and w o u l d
f u r t h e r t h e observance o f human r i g h t s . A proposal containing the expression
" w i t h a v i e w t o a f r i e n d l y s e t t l e m e n t o f t h e m a t t e r " was o b j e c t e d t o on t h e
grounds t h a t i t m i g h t p e r m i t S t a t e s concerned t o a r r i v e a t a f r i e n d l y agreement,
w h i c h m i g h t n o t n e c e s s a r i l y be based upon t h e observance o f human r i g h t s , b u t
w h i c h m i g h t , f o r example, be based on t h e i r own i n t e r e s t s o r m i g h t be t h e
result of a bargain. Moreover, such a s e t t l e m e n t m i g h t d i s r e g a r d t h e i n d i v i d u a l s
whose r i g h t s were v i o l a t e d . Other t e x t s , such as " i n o r d e r t o achieve i n a
f r i e n d l y s p i r i t a s o l u t i o n o f t h e q u e s t i o n I n c o n f o r m i t y w i t h t h e human r i g h t s
d e f i n e d i n t h e covenant" o r " f o r t h e d e t e r m i n a t i o n o f t h e i s s u e o f human r i g h t s
i n a s p i r i t o f c o n c i l i a t i o n " , were r e j e c t e d on t h e grounds t h a t t h e y d i d n o t
a d e q u a t e l y d e a l w i t h t h e c o n c i l i a t i o n f u n c t i o n s o f t h e ccmmittee o r meet t h e
r e q u i r e m e n t t h a t a s o l u t i o n s h o u l d be based on r e s p e c t f o r t h e r i g h t s and

freedcms d e f i n e d i n t h e covenant.

R e p o r t s o f t h e committee

111. A c c o r d i n g t o paragraphs 2 and 3 o f a r t i c l e 43 t h e ccmmittee i s t o draw up

a r e p o r t on a m a t t e r r e f e r r e d t o i t n o t l a t e r t h a n e i g h t e e n months a f t e r such
r e f e r r a l , t h e k i n d o f r e p o r t b e i n g dependent upon whether "a s o l u t i o n w i t h i n t h e
terms o f p a r a g r a p h 1" o f t h e a r t i c l e i s reached o r n o t , and t h e r e p o r t i s t o
be s e n t t o t h e S t a t e s concerned and t h e n communicated t o t h e S e c r e t a r y - G e n e r a l
for publication. An a d d i t i o n a l p r o v i s i o n i n p a r a g r a p h 2 r e q u i r i n g t h e committee
t o complete i t s r e p o r t "as p r o m p t l y as p o s s i b l e , p a r t i c u l a r l y when r e q u e s t e d
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one o f t h e S t a t e s p a r t i e s where human l i f e i s endangered" was d e l e t e d as a

consequence o f t h e o m i s s i o n o f t h e words "where human l i f e i s endangered"
i n a r t i c l e ko, p a r a g r a p h 3> and because t h e p r e s e n t t e x t o f t h e l a t t e r
p r o v i s i o n was c o n s i d e r e d as s u f f i c i e n t l y c o v e r i n g t h e o b j e c t i v e o f prompt
c o n s i d e r a t i o n o f " s e r i o u s and u r g e n t c a s e s " . 2 i /
112. Where a s o l u t i o n i s reached, t h e committee i s t o "confine i t s report
to a b r i e f statement o f t h e f a c t s and o f t h e s o l u t i o n reached". Although i t
was suggested t h a t t h e committee need n o t r e p o r t where an agreement o r s o l u t i o n
was r e a c h e d , i t was f e l t t h a t r e f e r e n c e t o t h e s o l u t i o n w o u l d n o t o n l y h e l p
o t h e r S t a t e s p a r t i e s b u t m i g h t p r e v e n t any f u t u r e c o n t r o v e r s y on t h e p r e c i s e
scope o f t h e s o l u t i o n . A p r o p o s a l t o d e l e t e t h e word " b r i e f " was r e j e c t e d .
I t was p o i n t e d o u t t h a t a f t e r a q u e s t i o n h a d been s e t t l e d , t h e r e was no need
to d w e l l on a l l t h e f a c t s , w h i c h m i g h t have adverse r e p e r c u s s i o n s on
i n t e r n a t i o n a l r e l a t i o n s and on t h e work o f t h e committee. Agreements were .
v e r y o f t e n p o s s i b l e o n l y because o f m u t u a l c o n c e s s i o n s . Undue p u b l i c i t y m i g h t
make i t d i f f i c u l t f o r governments t o make c o n c e s s i o n s , e s p e c i a l l y i f t h e d e t a i l s
of t h e m a t t e r were t o become p u b l i c l y known i n t h e i r own c o u n t r i e s . Some S t a t e s
m i g h t a l s o c l a i m t h a t t h e f a c t s c i t e d a g a i n s t them were m a t t e r s w i t h i n t h e i r
dcmestic j u r i s d i c t i o n ; b u t t h e y m i g h t be i n d u c e d , n e v e r t h e l e s s , t o make
c o n c e s s i o n s , p r o v i d e d t h e m a t t e r d i d n o t r e c e i v e widespread p u b l i c i t y . However,
i t was contended t h a t a l l S t a t e s , and n o t o n l y t h o s e i m m e d i a t e l y concerned, h a d
the r i g h t t o a p p r i s e d i n d e t a i l o f t h e f a c t s , e s p e c i a l l y where t h e r e h a d been
an amicable s e t t l e m e n t , i n o r d e r t o judge t h e s o l u t i o n and t o know what was and
was n o t a v i o l a t i o n o f human r i g h t s . Nor s h o u l d t h e importance w h i c h p u b l i c
o p i n i o n would a t t a c h t o any r e p o r t on t h e f a c t s c o n c e r n i n g v i o l a t i o n s o f human
r i g h t s be m i n i m i z e d . W i t h o u t d e t a i l s t h e r e m i g h t be danger o f t h e s p r e a d i n g o f
f a l s e , d i s t o r t e d o r u n f a i r i n f o r m a t i o n about t h e p r o c e e d i n g s and c o n c l u s i o n s
of t h e committee. Moreover, r e l i a n c e c o u l d be p l a c e d on t h e good sense o f t h e
committee w h i c h would u n d o u b t e d l y p r e v e n t i t f r o m p u b l i s h i n g a r e p o r t l i k e l y t o
harm i n t e r n a t i o n a l r e l a t i o n s o r t o have any adverse effects.

31/ See under a r t i c l e ho.

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. I t was o r i g i n a l l y e n v i s a g e d t h a t when a s o l u t i o n was n o t reached, t h e

committee s h o u l d s i m p l y " s t a t e i n i t s r e p o r t i t s c o n c l u s i o n s on t h e f a c t s " .
The i n c l u s i o n i n t h e r e p o r t o f t h e s t a t e m e n t s made b y t h e p a r t i e s t o t h e case
was added i n o r d e r t o emphasize t h e need and importance o f a f u l l r e p o r t on
t h e f a c t s o f such cases. I t was a l s o f e l t d e s i r a b l e t o make i t c l e a r t h a t t h e
committee was r e q u i r e d t o s t a t e i n t h e r e p o r t i t s o p i n i o n as t o whether t h e
facts established a b r e a c h o f t h e covenant and, where t h e r e was disagreement
on t h a t p o i n t , t o p e r m i t , b u t n o t t o o b l i g e , t h e i n c l u s i o n i n t h e r e p o r t
o f t h e m i n o r i t y v i e w s , on t h e l i n e s o f A r t i c l e 57 o f t h e S t a t u t e of the
I n t e r n a t i o n a l Court o f J u s t i c e .

DOCUMENTATION

Organ and Records o f Article

session discussion Other documents number

CHR ( V I ) E/CN.4/SR.l68, 177, E / C N A / V A , a r t . 24; ESC ( X I ) , s u p p l . 5,

191, 200 annex I , a r t . 4 l , and annex I I

ESC ( X I ) E/AC.7/SR.149, 150 E/L.68, p a r a s . 102, 122 41

GA (V) 3rd Com., 300th,

301st mtgs. 41

CHR ( V I I ) E/CN.4/SR.209, 210, E/CNA/515/AddA, 530, p a r a s . 64, 41

249 65, 67-74, 556, 565, 617, 6 1 7 / C o r r . l ;
ESC ( X I I I ) , s u p p l . 9, P a r a . 88,
annex I , a r t . 57

ESC ( X I V ) 665th mtg. 57

CHR ( I X ) E/CN.4/SR.388, 409, E/CN.4/675, L.227, 236, 245, 264/Add.l; 57

ESC ( X V I ) , p a r a s . 190-191, annex I B,
a r t . 43, and annex I I I , p a r a s , l45-l48

CHR ( X ) E/CN.4/702, No. XLX, 702/Add.l, 43

No. X X I V
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ARTICLE kk

Advisory opinions from the I n t e r n a t i o n a l

Court o f J u s t i c e

The Commitee may recommend t o t h e Economic and S o c i a l

C o u n c i l t h a t t h e C o u n c i l r e q u e s t t h e I n t e r n a t i o n a l Court
o f J u s t i c e t o g i v e an a d v i s o r y o p i n i o n on any l e g a l q u e s t i o n
connected w i t h a m a t t e r o f w h i c h t h e Committee i s s e i z e d .

Ilk. D i s c u s s i o n on t h i s a r t i c l e r e l a t e d t o t h e a d v i s a b i l i t y o f o b t a i n i n g
a d v i s o r y o p i n i o n s f r o m t h e I n t e r n a t i o n a l Court o f J u s t i c e and t h e procedure
hy w h i c h t h e committee c o u l d r e q u e s t such o p i n i o n s .
115. I t was p o i n t e d o u t t h a t , as t h e human r i g h t s committee was not intended
t o he a j u d i c i a l body, i t s h o u l d have t h e p o s s i b i l i t y o f c o n s u l t i n g t h e
I n t e r n a t i o n a l Court o f J u s t i c e on l e g a l q u e s t i o n s . This would not i n s t i t u t e a
system o f h i g h e r a p p e a l , b u t w o u l d p e r m i t t h e committee t o seek t h e a d v i c e o f t h e
Court on l e g a l q u e s t i o n s , i n c l u d i n g q u e s t i o n s r e l a t i n g t o i t s own competence.
However, t h e view was expressed t h a t such p r o v i s i o n s w o u l d be u n s u i t e d t o t h e
committee's purposes. Member S t a t e s and S t a t e s p a r t i e s t o t h e S t a t u t e o f t h e
I n t e r n a t i o n a l Court o f J u s t i c e c o u l d always approach t h e C o u r t , i f t h e y so w i s h e d
and agreed, I n t h e event o f t h e i r b e i n g fundamental d i f f e r e n c e s on l e g a l q u e s t i o n s .
The procedure o f t h e Court was also hardly appropriate f o r r e s o l v i n g , without
undue d e l a y , m a t t e r s l i k e l y t o come up i n t h e course o f t h e committee's work.
Moreover, s h o u l d t h e r e be a d i f f e r e n c e between t h e committee and t h e C o u r t ,
i t w o u l d be u n d e s i r a b l e t h a t t h e o p i n i o n o f t h e Court s h o u l d be i n any way
s u b o r d i n a t e d t o t h a t o f t h e committee. One suggested s o l u t i o n was t h a t t h e r e
s h o u l d be adequate r e p r e s e n t a t i o n on t h e committee o f members w i t h judicial
q u a l i f ic at i o n s .
li. A l t h o u g h t h e q u e s t i o n o f t h e committee i t s e l f a s k i n g a d v i s o r y o p i n i o n s
f r o m t h e I n t e r n a t i o n a l Court o f J u s t i c e was touched upon, i t was considered
t h a t t h i s w o u l d n o t be p o s s i b l e under t h e C h a r t e r and d i s c u s s i o n was concentrated
on f i n d i n g t h e a p p r o p r i a t e channel i n t h e U n i t e d N a t i o n s t h r o u g h w h i c h t h e
committee m i g h t seek such o p i n i o n s f r o m t h e C o u r t . I n t h i s connexion, the
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Secretary-General was r e q u e s t e d t o submit a r e p o r t w h i c h , i n t e r a l i a , contained

32/
the following statement of conclusions:
" ( l ) The proposed human r i g h t s committee w o u l d n o t be an organ o f t h e
U n i t e d N a t i o n s o r a s p e c i a l i z e d agency and, t h e r e f o r e , i t c o u l d n o t be
a u t h o r i z e d by t h e G e n e r a l Assembly t o r e q u e s t a d v i s o r y o p i n i o n s under
A r t i c l e 96 (2) o f t h e C h a r t e r .

(2) I t w o u l d be c o n t r a r y t o t h e i n t e n t and p o l i c y o f A r t i c l e 96 t o
p r o v i d e t h a t an organ s h a l l a c t as a mere i n t e r m e d i a r y f o r t r a n s m i t t i n g
t o t h e Court r e q u e s t s f o r a d v i s o r y o p i n i o n s made b y t h e proposed human
r i g h t s committee.

(3) I t w o u l d , however, be l e g a l l y p e r m i s s i b l e t o p r o v i d e t h a t t h e
p r o p o s e d human r i g h t s committee may make s u g g e s t i o n s t o a competent
organ t o t h e e f f e c t t h a t t h a t organ submit a r e q u e s t f o r an a d v i s o r y
o p i n i o n on a l e g a l q u e s t i o n a r i s i n g o u t o f t h e work o f t h e committee.
The o r g a n w o u l d i n t h a t case r e t a i n r e s p o n s i b i l i t y as t o whether t h e
q u e s t i o n s h a l l be p r e s e n t e d and t h e manner o f p r e s e n t i n g i t .

(4) I f t h e p r o p o s a l i n t h e p r e c e d i n g p a r a g r a p h i s adopted, t h e r e w o u l d
be s e v e r a l U n i t e d N a t i o n s organs w h i c h m i g h t be empowered t o r e c e i v e t h e
s u g g e s t i o n s o f t h e human r i g h t s committee and, a f t e r c o n s i d e r i n g such
s u g g e s t i o n s , t o submit r e q u e s t s f o r a d v i s o r y o p i n i o n s on l e g a l q u e s t i o n s
a r i s i n g o u t o f t h e committee's w o r k .

(5) The General Assembly and t h e Economic and S o c i a l C o u n c i l a r e two

such o r g a n s , s i n c e t h e y a r e a l r e a d y a u t h o r i z e d t o r e q u e s t a d v i s o r y
o p i n i o n s and s i n c e t h e y have competence i n t h e f i e l d o f human r i g h t s .
I n a d d i t i o n , t h e Commission on Human R i g h t s , w h i c h i s n o t p r e s e n t l y
a u t h o r i z e d t o r e q u e s t a d v i s o r y o p i n i o n s , c o u l d be so a u t h o r i z e d ...
F i n a l l y , i t w o u l d be p o s s i b l e f o r t h e G e n e r a l Assembly t o e n t r u s t t h e
S e c r e t a r y - G e n e r a l , p u r s u a n t t o A r t i c l e 98, w i t h t h e f u n c t i o n o f making
r e q u e s t s f o r a d v i s o r y o p i n i o n s on q u e s t i o n s a r i s i n g o u t o f t h e work o f
t h e p r o p o s e d human r i g h t s committee, a f t e r he t a k e s i n t o account
c o n s i d e r a t i o n s and s u g g e s t i o n s made t o h i m by t h e committee w i t h
r e s p e c t t o such r e q u e s t s . "

. The p r e s e n t t e x t o f t h e a r t i c l e d e s i g n a t e s t h e Economic and S o c i a l C o u n c i l

as t h e a u t h o r i t y t o whom t h e committee i s t o f o r w a r d i t s recommendation f o r
asking advisory opinions from t h e Court. One v i e w was t h a t t o p e r m i t t h e
Committee t o ask t h e Economic and S o c i a l C o u n c i l t o secure f r o m t h e Court

32/ See E/1732. T h i s statement was s u b m i t t e d on t h e b a s i s o f t h e d r a f t

covenant p r e p a r e d a t t h e s i x t h s e s s i o n o f t h e Commission on Human R i g h t s ,
w h i c h d i d n o t c o n t a i n , among o t h e r p r o v i s i o n s , t h e p r e s e n t a r t i c l e 46.
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a d v i s o r y o p i n i o n s on m a t t e r s o t h e r t h a n those under c o n s i d e r a t i o n h y t h e C o u n c i l
would he c o n t r a r y t o General Assembly r e s o l u t i o n 89 ( l ) , which empowered t h e
C o u n c i l t o r e q u e s t such o p i n i o n s on m a t t e r s w i t h i n t h e scope o f i t s a c t i v i t i e s ,
118. The p o s s i b i l i t y o f approaching t h e Court t h r o u g h t h e General Assembly
and t h e Commission on Human R i g h t s was a l s o mentioned and a p r e v i o u s p r o p o s a l
had envisaged t h a t t h e r e q u e s t m i g h t be made t h r o u g h t h e S e c r e t a r y - G e n e r a l .
The reasons g i v e n i n s u p p o r t o f t h e l a t t e r were t h a t i n t h e case o f o t h e r
organs t h e r e m i g h t be s e r i o u s d e l a y s owing t o t h e f a c t t h a t t h e y were n o t i n
c o n t i n u o u s s e s s i o n , and t h e r e m i g h t be undue p u b l i c i t y o f d i s p u t e s b e f o r e
d e c i s i o n s were t a k e n . To t h e o b j e c t i o n t h a t t h e S e c r e t a r y - G e n e r a l c o u l d , under
t h e C h a r t e r , o n l y r e q u e s t a d v i s o r y o p i n i o n s on m a t t e r s f a l l i n g w i t h i n t h e scope
o f h i s a c t i v i t i e s , i t was r e p l i e d t h a t t h e S e c r e t a r y - G e n e r a l w o u l d be f u l f i l l i n g
i m p o r t a n t d u t i e s w i t h r e g a r d t o t h e o r g a n i z a t i o n and f u n c t i o n i n g o f t h e committee
and t h e r e was no o b s t a c l e t o t h e General Assembly s p e c i f i c a l l y empowering h i m
t o r e q u e s t such o p i n i o n s f r o m t h e Court.
119. Another p o i n t o f v i e w was t h a t any system t h a t m i g h t be p r o v i d e d would
prove i n e f f e c t i v e . Whichever organ was r e q u e s t e d t o c o n s u l t t h e Court c o u l d n o t
be bound b y any d e c i s i o n o f t h e committee. The organ concerned would have t o
e x e r c i s e i t s own a u t h o r i t y and w o u l d have t o d e c i d e i t s e l f whether and on what
terms q u e s t i o n s were t o be addressed t o t h e Court.

DOCUMENTATION

Organ and Records o f Article

session discussion
Other documents number
CHR ( V l ) E/CN.SR.192
E/CN.4/487; ESC ( X I ) , s u p p l . 5, p a r a , ij-5
ESC ( X I ) E/AC.7/SR.149, 150 E/1732

GA ( V ) 3rd Com., 3 0 0 t h mtg Annexes, a . i . 6 3 , A/1559, para. 16

CHR ( V I I ) E/CN.SR.210,249 E/CN.y515/Add.4, Add.13, 530,

p a r a s . 78-79, 552, 558/Rev.l, NGO 2 4 j
ESC ( X I I I ) , s u p p l . 9 , p a r a . 86,
annex I , a r t . 56

CHR ( I X ) E/CN. y s R . 388 ESC ( X V I ) , s u p p l . 8," annex I B, a r t . 44 56

and annex I I I , p a r a s . 143-144
A/2929
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ARTICLE 45

Report o f t h e committee t o t h e General Assembly

The committee s h a l l submit t o t h e General Assembly, t h r o u g h

the S e c r e t a r y - G e n e r a l o f t h e U n i t e d N a t i o n s , an a n n u a l r e p o r t on
its activities.

120. T h i s a r t i c l e was i n c l u d e d p r i n c i p a l l y w i t h a view t o s t r e n g t h e n i n g t h e

l i n k between t h e covenant, t h e human r i g h t s committee and t h e U n i t e d N a t i o n s .
121. The a r t i c l e was o b j e c t e d t o on t h e grounds t h a t i t w o u l d be improper
f o r t h e committee t o r e p o r t d i r e c t l y t o t h e General Assembly s i n c e i t d i d n o t
appear t h a t t h e committee was i n t e n d e d t o be a s u b s i d i a r y organ o f t h e Assembly.
F u r t h e r m o r e , t h e r o l e o f t h e General Assembly was n o t d e f i n e d , n o r was i t
s t a t e d whether t h e r e p o r t s w o u l d be t r a n s m i t t e d t o t h e General Assembly f o r
information o r examination. Moreover, t h e a r t i c l e was c o n s i d e r e d unnecessary
i n view o f t h e p r o v i s i o n s o f a r t i c l e 43. The v i e w was a l s o expressed t h a t
the committee was n o t b a r r e d f r o m making comments o r r e p o r t i n g on s p e c i a l
m a t t e r s t o t h e U n i t e d N a t i o n s i f i t so w i s h e d .
122. I t was f e l t , however, t h a t t h e a n n u a l r e p o r t would n o t n e c e s s a r i l y be drawn
up on t h e l i n e s o f t h e r e p o r t c o n c e r n i n g a p a r t i c u l a r case envisaged i n
a r t i c l e 43. An annual r e p o r t w o u l d p r e s e n t an a p p r a i s a l o f t h e work done b y t h e
committee f r o m y e a r t o y e a r , w h i c h w o u l d f o r m an i m p o r t a n t c o n t r i b u t i o n t o
t h e p r o t e c t i o n and p r o m o t i o n o f human r i g h t s . The o p i n i o n was a l s o expressed
t h a t , s i n c e t h e committee had no power t o make recommendations, i t was o n l y
p r o p e r t h a t i t s h o u l d r e p o r t on i t s work t o t h e General Assembly w h i c h , under
the C h a r t e r , c o u l d make recommendations t o a l l Members o f t h e U n i t e d N a t i o n s .
 A/2929
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DOCUMENTATION

Organ and s e s s i o n Records o f d i s c u s s i o n Documentation Article

number
GA (V) 3rd Com., 300th mtg. Annexes, a . i . 63, A/c.3/53^
p a r a . 23

CHR ( V I I ) E/CN.4/SR.249 E/CN../530, p a r a s . 83-84;

556, 617; ESC ( X I I I ) ,
s u p p l . 9, p a r a . 89, and
annex I , a r t . 58

CHR (LX) E/CN.4/SR.389, 409 E/CN.4/L.227, 264/Add.l; 58

ESC ( X V I ) , s u p p l . 8,
p a r a s . 195-197, annex I ,
a r t . 4-5, and annex I I I ,
p a r a s . 149-151

GA ( I X ) 45
A/2929
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ARTICLE 46

Recourse t o t h e I n t e r n a t i o n a l Court o f J u s t i c e i n t h e e v e n t o f t h e
f a i l u r e o f t h e committee t o r e a c h a s o l u t i o n

The S t a t e s P a r t i e s t o t h i s Covenant agree t h a t any S t a t e

P a r t y complained o f o r l o d g i n g a c o m p l a i n t may, i f no s o l u t i o n
has been reached w i t h i n t h e terms o f a r t i c l e 43, p a r a g r a p h 1,
b r i n g t h e case b e f o r e t h e I n t e r n a t i o n a l Court o f J u s t i c e a f t e r
t h e r e p o r t p r o v i d e d f o r i n a r t i c l e 43, p a r a g r a p h 3, has been
drawn up.

123. The p r i n c i p l e u n d e r l y i n g t h i s a r t i c l e was welcomed, p a r t i c u l a r l y as i t

would a l l a y t h e concern o f many S t a t e s about t h e committee d o i n g what was
tantamount t o p a s s i n g judgment on S t a t e s , p o s s i b l y o v e r t h e i r h i g h e s t n a t i o n a l
tribunals. The main q u e s t i o n d i s c u s s e d -was whether t h e r i g h t s h o u l d be
r e s t r i c t e d , as i n i t i a l l y proposed, t o t h e accused S t a t e a g a i n s t whom an adverse
o p i n i o n h a d been r e p o r t e d b y t h e committee, o r g r a n t e d e q u a l l y t o a l l t h e S t a t e s
concerned i n a d i s p u t e , as p r o v i d e d i n t h e p r e s e n t t e x t .
124. Reference was made t o t h e p r o v i s i o n o f a r t i c l e 43, p a r a g r a p h 3, whereby
t h e human r i g h t s committee, i n case o f f a i l u r e t o r e a c h a s o l u t i o n i n a m a t t e r
r e f e r r e d t o i t , would s t a t e i n i t s r e p o r t i t s o p i n i o n as t o whether t h e f a c t s
f o u n d d i s c l o s e d a b r e a c h b y t h e S t a t e concerned o f i t s o b l i g a t i o n s under t h e
covenant. Such a f i n d i n g , i t was p o i n t e d o u t , w o u l d a f f e c t t h e honour and
r e p u t a t i o n o f a S t a t e , w h i c h would s t a n d c o n v i c t e d b e f o r e t h e i n t e r n a t i o n a l
community. Since t h e committee w o u l d be p e r f o r m i n g what was tantamount t o
a j u d i c i a l f u n c t i o n w i t h o u t b e i n g an e n t i r e l y j u d i c i a l body, and as i t was
d e s i r a b l e t h a t t h e o p i n i o n o f t h e committee s h o u l d n o t be f i n a l and c o n c l u s i v e
on i s s u e s w h i c h m i g h t have grave consequences f o r t h e S t a t e concerned, t h e
l a t t e r s h o u l d have an assurance t h a t i t c o u l d o b t a i n j u d i c i a l remedy t h r o u g h
r e c o u r s e , t o t h e h i g h e s t i n t e r n a t i o n a l j u d i c i a l body. Under a r t i c l e 47 o f t h e
covenant a S t a t e m i g h t b r i n g any d i s p u t e r e l a t i n g t o t h e i n t e r p r e t a t i o n o r
a p p l i c a t i o n o f t h e covenant b e f o r e t h e I n t e r n a t i o n a l C o u r t o f J u s t i c e , e i t h e r
by u n i l a t e r a l a p p l i c a t i o n o r b y s p e c i a l agreement w i t h t h e . o t h e r S t a t e p a r t y t o
a d i s p u t e , depending on whether o r n o t t h e p a r t i e s had a c c e p t e d t h e compulsory
j u r i s d i c t i o n o f t h e Court. I n t h e i n s t a n c e e n v i s a g e d i n a r t i c l e 46, t h e r e c o u r s e
 /2929
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t o t h e Court s h o u l d n o t he made dependent on t h e agreement o f t h e c o m p l a i n i n g

State. W h i l e t h e accused S t a t e w o u l d be f r e e t o d e c i d e whether o r n o t t o appeal
a g a i n s t t h e adverse r e p o r t o f t h e committee, once t h e appeal was made t h e
c o m p l a i n i n g S t a t e would be a u t o m a t i c a l l y s u b j e c t e d t o t h e compulsory
j u r i s d i c t i o n o f t h e Court. The p o s i t i o n o f t h e c o m p l a i n i n g S t a t e c o u l d
h a r d l y be a f f e c t e d s i n c e , i f i t had a c t e d i n good f a i t h i n making t h e c o m p l a i n t
i n t h e f i r s t i n s t a n c e , i t s h o u l d be p r e p a r e d t o u p h o l d i t s c o m p l a i n t b e f o r e
any o r g a n . Moreover, t h e competence o f t h e committee w o u l d remain as t h e
a p p e a l t o t h e C o u r t w o u l d t a k e p l a c e o n l y a f t e r t h e committee had made i t s r e p o r t .
125. I t was t h o u g h t d e s i r a b l e , however, t o r e c o g n i z e t h e r i g h t o f a p p e a l on an
e q u a l b a s i s f o r b o t h t h e S t a t e complained a g a i n s t and t h e c o m p l a i n i n g S t a t e .
Reference was made t o t h e r e c o g n i t i o n o f t h i s p r i n c i p l e i n t h e c o n s t i t u t i o n o f
t h e I n t e r n a t i o n a l Labour O r g a n i s a t i o n . I t was argued t h a t i t was j u s t as
i m p o r t a n t t o a l l o w a c o m p l a i n i n g S t a t e t o appeal i n t h e event t h a t t h e committee's
c o n c l u s i o n s amounted t o a d i s m i s s a l o f i t s c o m p l a i n t . The committee was n o t t o be
a j u d i c i a l body b u t w o u l d be o f t e n r e q u i r e d t o a c t j u d i c i a l l y , and though
a r t i c l e hh p r o v i d e d f o r t h e p o s s i b i l i t y o f i t s s e e k i n g a d v i s o r y o p i n i o n s f r o m
t h e I n t e r n a t i o n a l Court o f J u s t i c e on l e g a l q u e s t i o n s , i t m i g h t n o t always do so.
T h e r e f o r e , a c o m p l a i n i n g S t a t e m i g h t a l s o want t o have r e c o u r s e t o t h e Court o u t
o f concern a t what i t m i g h t c o n s i d e r an erroneous i n t e r p r e t a t i o n b y t h e committee
o f t h e covenant w h i c h m i g h t i n v o l v e i m p o r t a n t consequences f o r t h e p r o t e c t i o n o f
human r i g h t s .
126. A l t h o u g h r e c o g n i t i o n o f t h e e q u a l r i g h t o f a p p e a l was t h o u g h t t o be i n t h e
r i g h t d i r e c t i o n , i t was f e l t t h a t i t m i g h t d e t e r many S t a t e s f r o m r a t i f y i n g t h e
covenant. There was e v e r y reason f o r o f f e r i n g r e d r e s s and a l l o w i n g a r i g h t
o f a p p e a l t o a S t a t e p u b l i c l y accused b y a n o n - j u d i c i a l body o f a b r e a c h o f t h e
covenant, b u t i t was a d i f f e r e n t t h i n g t o impose upon i t t h e compulsory
j u r i s d i c t i o n o f t h e Court. I t was a l s o d e s i r a b l e t o a v o i d d i s p u t e s b e i n g
b r o u g h t up a second t i m e , e s p e c i a l l y a g a i n s t an accused S t a t e w h i c h had been
e x o n e r a t e d b y t h e committee.
127- A n o t h e r p o i n t o f view was t h a t t h e General Assembly was t h e p r o p e r body
of l a s t instance or the f i n a l a r b i t r a r regarding the non-application o f t h e
covenant. V i o l a t i o n s o f t h e covenant were l i k e l y t o g i v e r i s e t o p o l i t i c a l
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r a t h e r t h a n j u d i c i a l i s s u e s , and t h e I n t e r n a t i o n a l C o u r t o f J u s t i c e was n o t t h e
b e s t q u a l i f i e d hody f o r c o n s i d e r i n g such m a t t e r s . I t was p o i n t e d o u t ,
however, t h a t t h e competence o f t h e General Assembly was c l e a r l y r e c o g n i z e d under
a r t i c l e 45 o f t h e covenant w h i c h r e q u i r e d t h e committee t o s u b m i t annual r e p o r t s
t o t h e General Assembly, and t h e Assembly c o u l d a l s o i n t e r v e n e , i f necessary,
a f t e r t h e Court had r e n d e r e d judgment. A t t h e same t i m e , recourse t o the
I n t e r n a t i o n a l Court o f J u s t i c e p r o v i d e d a more e f f e c t i v e method, s i n c e
judgments o f t h e Court w o u l d be l e g a l l y b i n d i n g and c o u l d g i v e r i s e t o
enforcement measures under A r t i c l e 94 o f t h e C h a r t e r .

DOCUMEKTATIOI

Organ and Records o f Other documents Article

session discussion number

CHR ( I X ) E/cN.ysR.390, k09 E/CN.4/L.249, 264/Add.l, 279J

ESC ( X V I ) , S u p p l . 8,
p a r a s . 201-205, annex I B,
a r t . 46, and annex I I I ,
p a r a s . I55-I57

ESC ( X V I ) E/C.2/SR.131
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ARTICLE 47

Jurisdiction of the International Court o f J u s t i c e

The p r o v i s i o n s o f t h i s Covenant s h a l l n o t p r e v e n t t h e
S t a t e s P a r t i e s t o t h e Covenant f r o m s u b m i t t i n g t o t h e
I n t e r n a t i o n a l C o u r t o f J u s t i c e any d i s p u t e a r i s i n g o u t o f
t h e i n t e r p r e t a t i o n o r a p p l i c a t i o n o f t h e Covenant i n a
m a t t e r w i t h i n t h e competence o f t h e Committee,

128. A previous t e x t provided t h a t States p a r t i e s s h o u l d agree n o t t o submit

by way o f w r i t t e n a p p l i c a t i o n t o t h e C o u r t , except by s p e c i a l agreement, any
dispute a r i s i n g out o f the i n t e r p r e t a t i o n o r application o f t h e covenant i n a
m a t t e r w i t h i n t h e competence o f t h e human r i g h t s committee. Another proposal
would have s p e c i f i e d t h a t a m a t t e r b e f o r e t h e committee m i g h t n o t be r e f e r r e d t o
t h e Court w h i l e i t was s t i l l under c o n s i d e r a t i o n by t h e committee o r a t any t i m e
before the expiration o f t h r e e months a f t e r t h e p u b l i c a t i o n o f the r e p o r t o f
the committee; and t h a t , even a f t e r t h e e x p i r a t i o n o f t h a t p e r i o d , t h e Court
m i g h t be s e i z e d o f a p o i n t o f l a w c o n c e r n i n g t h e i n t e r p r e t a t i o n of. t h e covenant
o n l y b y v i r t u e o f a s p e c i a l agreement between t h e S t a t e s concerned^
129. I t was observed t h a t t h e b a s i c aim was t o c r e a t e an i n t e r n a t i o n a l body
w i t h f a c t - f i n d i n g and c o n c i l i a t o r y powers, w h i c h e n t a i l e d some r e s t r i c t i o n s on
the recourse t o t h e Court. I t was d e s i r a b l e t o d e f i n e c l e a r l y under what
circumstances r e c o u r s e t o t h e Court w o u l d be p e r m i t t e d , p a r t i c u l a r l y on a
c o m p l a i n t o f w h i c h t h e human r i g h t s committee was a l r e a d y s e i z e d - I t was a l s o
p o i n t e d o u t t h a t many S t a t e s had made d e c l a r a t i o n s under t h e " o p t i o n a l clause" o f
A r t i c l e 36 o f t h e S t a t u t e o f t h e C o u r t , a c c e p t i n g t h e compulsory j u r i s d i c t i o n
o f t h e Court on any l e g a l d i s p u t e s a r i s i n g o u t o f t h e i n t e r p r e t a t i o n o f a t r e a t y .
F u r t h e r m o r e , c e r t a i n S t a t e s had accepted t h a t c l a u s e w i t h r e s e r v a t i o n s . I t was
essential, therefore, t o s t i p u l a t e t h a t t h e Court s h o u l d n o t be competent, under
the o p t i o n a l c l a u s e , t o d e a l w i t h m a t t e r s a t t h e r e q u e s t o f o n l y one o f t h e S t a t e s
p a r t i e s t o t h e covenant concerned i n a m a t t e r w i t h i n t h e competence o f t h e committee,
b u t t o p r o v i d e t h a t such S t a t e s w o u l d be f r e e t o r e f e r t h e m a t t e r t o t h e Court by
s p e c i a l agreement. Moreover, w i t h o u t some r e s t r i c t i o n s t h e r e m i g h t be danger o f
c o n f l i c t s o f j u r i s d i c t i o n , and S t a t e s m i g h t a l s o be d e t e r r e d f r o m r a t i f y i n g t h e
covenant.
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130. I n f a v o u r o f t h e p r e s e n t t e x t o f a r t i c l e 4-7, t h e v i e w was expressed that

t h e j u r i s d i c t i o n o f t h e Court s h o u l d n o t he u n d u l y r e s t r i c t e d . I t was i n a d v i s a b l e
and i n a p p r o p r i a t e t o t a k e away f r o m t h e Court i t s competence r e c o g n i z e d b y
i n t e r n a t i o n a l i n s t r u m e n t s o r t o d e p r i v e S t a t e s o f t h e r i g h t s and o b l i g a t i o n s
a r i s i n g f r o m t h e i r acceptance o f t h e compulsory j u r i s d i c t i o n of t h e Court. I t
was, c o n s e q u e n t l y , necessary t o p r e s e r v e t h e competence o f t h e Court and t o p r o v i d e
t h a t t h e S t a t e s p a r t i e s t o t h e covenant, i n c l u d i n g t h o s e bound b y t h e acceptance o f
t h e compulsory j u r i s d i c t i o n c l a u s e , would n o t be p r e v e n t e d f r o m a g r e e i n g j o i n t l y t o
submit t h e i r d i s p u t e t o t h e committee.
131. The o p i n i o n was, n e v e r t h e l e s s , expressed t h a t t h e p r e s e n t a r t i c l e would amount
t o c i r c u m s c r i b i n g t h e competence o f t h e committee. w h i l e t h e committee s h o u l d n o t
d e a l w i t h a m a t t e r i f t h e Court was s e i z e d o f i t , t h e r e was no reason why t h e
committee s h o u l d n o t d e a l w i t h a m a t t e r o f w h i c h t h e Court was n o t s e i z e d ; the
e x i s t i n g t e x t tended t o encourage t h e b y - p a s s i n g o f t h e committee.
132. I n t h i s connexion, r e f e r e n c e i s made t o a p r o v i s i o n , w h i c h was accepted b u t
w h i c h does n o t appear i n t h e p r e s e n t d r a f t covenant because t h e a r t i c l e o f which i t
33/
formed a p a r t was r e j e c t e d . ' That p r o v i s i o n s t i p u l a t e d t h a t t h e human r i g h t s
committee s h o u l d n o t t a k e any a c t i o n w i t h r e g a r d t o any m a t t e r " w i t h w h i c h t h e
I n t e r n a t i o n a l Court o f J u s t i c e i s a l r e a d y s e i z e d " . I t was based on t h e o p i n i o n
t h a t i t was necessary t o a v o i d o v e r l a p p i n g o f j u r i s d i c t i o n and any p o s s i b l e
p r e j u d i c e i n t h e c o n s i d e r a t i o n o f a d i s p u t e b y t h e p r i n c i p a l j u d i c i a l organ o f t h e
United Nations. A t t h e same t i m e t h e committee would be a b l e t o a c t i n a m a t t e r
w h i c h , though w i t h i n t h e competence o f t h e C o u r t , had n o t been i n f a c t s u b m i t t e d t o
the Court.

35/ See paragraph i V f below.

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EOCUMENTATON

Organ and Records o f O t h e r documents Article

session discussion number

CHR ( V I ) E / C N / S R . 191 E/CN.4/474, a r t . 25; ESC ( X l ) ,

S u p p l . 5, p a r a . 44, annex I I

ESC ( X I ) E/AC.7/SR.147, E/L.68, p a r a s . 101, 103

1 4 9 , 150

GA (V) 3rd Com.,

300th m t g .

CHR ( V I I ) E / C N / S R . 249 E/CN.4/515/Add.4, Add.13, 530,

p a r a . 8 0 , 552, 560/Rev.l, 617,
620; ESC ( X I I I ) , S u p p l . 9,
p a r a . 90, annex I , a r t . 59

ESC ( X I I I ) E/C.2/SR.106 E/C.2/299

GA ( V I ) 3rd Com., Annexes, a . i . 29, A/2112,

370th mtg. p a r a . 30

CHR ( V I I I ) E/CN/530/Add.l, p a r a . 26,

, p a r a . 71

CHR ( I X ) E/CN / S R . 3hk, E/CN.V675, paras, 8-10, 30,

389 L . 2 4 5 , NGO 49; ESC ( X V l ) ,
S u p p l . 8, p a r a s . 198-2C0,
annex I B, a r t . 47, and
annex I I I , p a r a s . 152-154
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ARTICLE 48
34 I
I m p l e m e n t a t i o n o f a r t i c l e 1 on s e l f - d e t e r m i n a t i o n '
1. The S t a t e s P a r t i e s t o t h i s Covenant, i n c l u d i n g those
who a r e r e s p o n s i b l e f o r t h e a d m i n i s t r a t i o n o f any
Non-Self-Governing T e r r i t o r y undertake t o submit r e p o r t s
a n n u a l l y t o t h e Committee on t h e measures t a k e n b y them
t o meet t h e o b l i g a t i o n s s e t f o r t h i n a r t i c l e 1 o f t h i s
Covenant.

2. The S t a t e s P a r t i e s t o t h i s Covenant who a r e

r e s p o n s i b l e f o r t h e a d m i n i s t r a t i o n o f any Non-Self-
Governing T e r r i t o r y , u n d e r t a k e , t h r o u g h e l e c t i o n s ,
p l e b i s c i t e s o r o t h e r r e c o g n i z e d democratic means,
p r e f e r a b l y under t h e auspices o f t h e U n i t e d N a t i o n s ,
t o determine t h e p o l i t i c a l s t a t u s o f such t e r r i t o r y ,
s h o u l d t h e Committee make a p r o p o s a l t o t h a t e f f e c t and
such p r o p o s a l be adopted b y t h e General Assembly. Such
d e c i s i o n s h a l l be based on evidence o f t h e d e s i r e o f t h e
I n h a b i t a n t s o f such t e r r i t o r y as expressed t h r o u g h
t h e i r p o l i t i c a l i n s t i t u t i o n s or p a r t i e s .

3- The S t a t e s P a r t i e s t o t h i s Covenant s h a l l r e p o r t
t o t h e Committee any v i o l a t i o n o f t h e r i g h t l a i d down
i n paragraph 3 o f a r t i c l e 1.

133- D i s c u s s i o n on t h i s a r t i c l e r e l a t e d t o t h e p r o v i s i o n s c o n c e r n i n g annual
r e p o r t s on t h e a p p l i c a t i o n o f a r t i c l e 1 o f t h e covenant and t h e procedures
for determining the p o l i t i c a l status o f non-self-governing t e r r i t o r i e s .
D u r i n g t h e d i s c u s s i o n views were expressed on t h e g e n e r a l q u e s t i o n o f s e l f -
d e t e r m i n a t i o n and on a r t i c l e 1 o f t h e covenant, and, i n p a r t i c u l a r , o p p o s i t
t o t h e whole o f a r t i c l e 48 was v o i c e d by those who opposed t h e i n c l u s i o n o f
a r t i c l e 1 i n t h e covenant. An account o f such views w i l l be f o u n d under
article 1.

R e p o r t s on a r t i c l e 1

134. R e p o r t i n g t o t h e human r i g h t s committee on t h e i m p l e m e n t a t i o n o f

a r t i c l e 1 on a u n i v e r s a l b a s i s was c o n s i d e r e d b y some t o be e s s e n t i a l .

54/ See a l s o paras. 93-95 above.

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I t was p o i n t e d o u t t h a t a l t h o u g h A r t i c l e 73 e o f t h e C h a r t e r d i d n o t r e q u i r e
submission o f i n f o r m a t i o n t o t h e U n i t e d N a t i o n s o f a p o l i t i c a l n a t u r e r e l a t i n g
t o Non-Self-Governing T e r r i t o r i e s , t h e U n i t e d N a t i o n s had g r a d u a l l y a f f i r m e d i t s
i n t e r e s t i n p o l i t i c a l as w e l l as economic and s o c i a l m a t t e r s o f such t e r r i t o r i e s .
Reference was made t o General Assembly recommendations i n v i t i n g r e p o r t s from
A d m i n i s t e r i n g A u t h o r i t i e s on p o l i t i c a l and human r i g h t s m a t t e r s i n those
t e r r i t o r i e s , and. t o t h e f a c t t h a t such i n f o r m a t i o n was b e i n g i n c r e a s i n g l y
s u p p l i e d and p u b l i s h e d by a number o f such a u t h o r i t i e s . I t was a l s o contended
t h a t t h e r e w o u l d be no d u p l i c a t i o n w i t h t h e work o f t h e Committee on I n f o r m a t i o n
f r o m Non-Self-Governing T e r r i t o r i e s , w h i c h was i n any case n o t a permanent
body, because t h a t committee and t h e human r i g h t s committee w o u l d have d i f f e r e n t
terms o f r e f e r e n c e . The human r i g h t s committee w o u l d n o t be a p o l i t i c a l b u t
a n e u t r a l and i m p a r t i a l body o f persons o f h i g h e s t q u a l i f i c a t i o n s a c t i n g i n
t h e i r p e r s o n a l c a p a c i t y , w h i c h would guarantee t h a t t h e y w o u l d n o t abuse any
i n f o r m a t i o n s u b m i t t e d t o them.
135- I t was p o i n t e d o u t , however, t h a t t h e p r o p o s a l went beyond t h e p r o v i s i o n s
o f t h e Charter, t h a t d u p l i c a t i o n w i t h e x i s t i n g systems o f r e p o r t i n g under t h e
C h a r t e r w o u l d be i n e v i t a b l e , and t h a t i t w o u l d d e t e r S t a t e s f r o m r a t i f y i n g t h e
covenant. Moreover, t h e human r i g h t s committee by i t s n a t u r e and f u n c t i o n s was
n o t t h e a p p r o p r i a t e body t o d i s c u s s r e p o r t s on s e l f - d e t e r m i n a t i o n ; were i t t o
s t u d y such r e p o r t s , i t would r u n t h e r i s k o f l o s i n g t h a t o b j e c t i v i t y o f
approach w h i c h was b a s i c t o i t s t a s k o f s e e k i n g p e a c e f u l s e t t l e m e n t o f d i s p u t e s .
I t was a l s o s a i d t h a t , i f t h e o b l i g a t i o n s under a r t i c l e 1 were a b s o l u t e and
immediate, r e p o r t i n g w o u l d serve no u s e f u l purpose.
136. Another o p i n i o n expressed was t h a t t o c a l l f o r r e p o r t s f r o m a l l governments
would i n f r i n g e domestic j u r i s d i c t i o n and go beyond t h e terms o f t h e C h a r t e r ,
w h i c h p r o v i d e d f o r r e p o r t s o n l y f r o m A d m i n i s t e r i n g A u t h o r i t i e s o f Non-Self-
Governing and T r u s t T e r r i t o r i e s . F u r t h e r m o r e , t h e r e p o r t s , i f t h e y were t o
be s u b m i t t e d , s h o u l d be s u b m i t t e d t o t h e General Assembly, w h i c h was t h e
a p p r o p r i a t e and competent organ. Amendments t o s u b s t i t u t e t h e General Assembly
f o r t h e committee and t o c o n f i n e t h e s u b m i s s i o n o f r e p o r t s t o A d m i n i s t e r i n g
A u t h o r i t i e s were r e j e c t e d .
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137. The p r e s e n t t e x t o f paragraph 3 o f a r t i c l e 48 "was hased on t h e view t h a t i t

was necessary t o a l l o w S t a t e s t o r e p o r t t o t h e human r i g h t s committee on any
v i o l a t i o n o f a r t i c l e 1, paragraph 3- I t was contended t h a t , a l t h o u g h c o m p l a i n t s
o f v i o l a t i o n s o f t h e l a t t e r p r o v i s i o n might he s u b m i t t e d t o t h e committee under
a r t i c l e 4o, t h a t procedure would be u s e l e s s i n cases o f v i o l a t i o n o f s o v e r e i g n t y
over n a t u r a l w e a l t h and r e s o u r c e s by o t h e r t h a n S t a t e s . The p r o p o s a l was opposed
n o t o n l y on t h e g e n e r a l grounds i n d i c a t e d above b u t , i n p a r t i c u l a r , on t h e
grounds t h a t i t w o u l d o n l y exacerbate i n t e r n a t i o n a l r e l a t i o n s and o b s t r u c t
mutual t r a d e and economic r e l a t i o n s .

Determination o f the p o l i t i c a l status o f non-self-governing t e r r i t o r i e s

138. Paragraph 2 o f a r t i c l e 48 was c r i t i c i z e d on t h e grounds t h a t i t was

d i s c r i m i n a t o r y and i n c o n s i s t e n t w i t h t h e o b l i g a t i o n s imposed on Member S t a t e s
by t h e C h a r t e r , and l i k e l y t o h i n d e r t h e r a t i f i c a t i o n o f t h e covenant. Besides
n o n - s e l f - g o v e r n i n g t e r r i t o r i e s , t h e r e were o t h e r areas and peoples f o r whom
t h e same r i g h t o f s e l f - d e t e r m i n a t i o n s h o u l d be r e c o g n i z e d . W h i l e Chapters X I
and X I I o f t h e C h a r t e r p l a c e d s p e c i a l o b l i g a t i o n s on A d m i n i s t e r i n g S t a t e s , i t
was n o t p r o p e r o r a d v i s a b l e t o ask governments t o e n t e r i n t o u n d e r t a k i n g s t h a t
went beyond them. Any new o b l i g a t i o n s s h o u l d be undertaken e q u a l l y by a l l .
A. d i f f e r e n t i a l t r e a t m e n t s h o u l d n o t be i n t r o d u c e d i n t o a covenant on human r i g h t s ,
where i t was e s s e n t i a l t o observe t h e p r i n c i p l e s o f u n i v e r s a l i t y and u n i f o r m i t y .
A d m i n i s t e r i n g a u t h o r i t i e s w o u l d n o t be p r e p a r e d t o abandon t h e i r responsibility
f o r d e t e r m i n i n g whether a p a r t i c u l a r t e r r i t o r y had reached such a stage o f
development as t o enable i t s a t i s f a c t o r i l y t o determine i t s own s t a t u s . Nor
were t h e y l i k e l y t o undertake t o conduct p l e b i s c i t e s o r o t h e r w i s e determine
a t e r r i t o r y ' s s t a t u s on t h e a d o p t i o n b y t h e General Assembly o f a p r o p o s a l b y
t h e human r i g h t s committee.
139- The p r o p o s a l was a l s o c o n s i d e r e d i m p r a c t i c a l . I t was observed t h a t a
q u a s i - j u d i c i a l body, w h i c h was s e t up f o r c o n c i l i a t i o n and f a c t - f i n d i n g , c o u l d
n o t e x e r c i s e p o l i t i c a l powers w i t h o u t d e s t r o y i n g t h e c o n f i d e n c e o f S t a t e s i n i t .
The committee c o u l d n o t , i n any case, e v a l u a t e t h e evidence b e f o r e i t w i t h o u t
b e i n g p r o v i d e d w i t h adequate means and procedures t o do so. Moreover, i t was
p a r a d o x i c a l t h a t t h e proposed procedure sanctioned the r i g h t o f p e t i t i o n f o r a
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p o l i t i c a l and c o l l e c t i v e r i g h t , i n v o l v i n g t h e f a t e o f m i l l i o n s o f p e o p l e , while
such a r e c o u r s e was rejected for individual rights. Furthermore, t h e methods
p r e s c r i b e d f o r a s c e r t a i n i n g t h e wishes o f t h e people seemed t o i g n o r e r e a l i t y .
P l e b i s c i t e s and e l e c t i o n s were n o t always t h e b e s t means, and t h e y had not
always p r o v e d s u c c e s s f u l . Above a l l , each case had t o be c o n s i d e r e d on i t s own
m e r i t s , a c c o r d i n g t o i t s own circumstances, t o g e t h e r w i t h a wide range o f
p o l t i c a l and o t h e r c o n s i d e r a t i o n s , p a r t i c u l a r l y t h e maintenance o f peace.
iko. I n s u p p o r t o f t h e p r o v i s i o n s o f p a r a g r a p h 2 o f t h e a r t i c l e , i t was stated
t h a t t h e r e was no q u e s t i o n o f d e p r i v i n g any people of t h e r i g h t t o express t h e i r
opinions concerning t h e i r p o l i t i c a l s t a t u s . Sovereign S t a t e s p r o v i d e d many
procedures f o r a s c e r t a i n i n g t h e i r people's d e s i r e s . However, s p e c i a l
r e s p o n s i b i l i t i e s had been l a i d upon governments r e s p o n s i b l e f o r the
a d m i n i s t r a t i o n o f n o n - s e l f - g o v e r n i n g and t r u s t t e r r i t o r i e s . Those Governments
had c e r t a i n c l e a r l y p r e s c r i b e d d u t i e s t o p e r f o r m , b e i n g p l e d g e d t o develop
self-government and t o a s s i s t t h e i r t e r r i t o r i e s i n t h e p r o g r e s s i v e development o f
their free p o l i t i c a l institutions. Moreover, t h e p r o p o s a l w o u l d a p p l y o n l y t o
those dependent t e r r i t o r i e s w h i c h had a c h i e v e d a s u f f i c i e n t l y advanced s t a n d a r d
and possessed p o l i t i c a l i n s t i t u t i o n s e n a b l i n g t h e i r people t o govern themselves.
ikl. The human r i g h t s committee w o u l d n o t t a k e t h e i n i t i a t i v e . I t could only
endorse or r e j e c t demands p u t f o r w a r d on t h e b a s i s o f ample evidence p r o v i d e d
by p o l i t i c a l i n s t i t u t i o n s and p a r t i e s i n t h e t e r r i t o r y concerned, a f t e r
c o n s i d e r i n g the genuineness o f t h e i r evidence and t o what e x t e n t t h e y were
r e p r e s e n t a t i v e o f p u b l i c o p i n i o n and o f t h e a s p i r a t i o n s o f t h e people. Such a
procedure, w h i c h was i n i t s e l f a l i m i t a t i o n on t h e r i g h t o f s e l f - d e t e r m i n a t i o n ,
was designed t o meet the argument t h a t s e l f - d e t e r m i n a t i o n c o u l d n o t be g i v e n t o
p r i m i t i v e s o c i e t i e s where i t might l e a d t o chaos and savagery, and w o u l d indeed
be c o n t r a r y t o the i n t e r e s t s o f t h e i n h a b i t a n t s . The aim was effective
i n t e r n a t i o n a l a c t i o n t o e l i c i t the w i l l o f t h e people and t o a v o i d c o n f l i c t .
The c o n c i l i a t o r y a c t i v i t i e s o f the human r i g h t s committee w o u l d be t o t h e
advantage o f b o t h a d m i n i s t e r i n g a u t h o r i t i e s and n o n - s e l f - g o v e r n i n g territories,
and, as a n o n - p o l i t i c a l body o f the h i g h e s t s t a n d i n g , i t c o u l d be r e l i e d upon t o
d i s c h a r g e t h a t d u t y w i t h a l l due objectivity.
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142. A n o t h e r p o i n t o f view was t h a t , w h i l e t h e p r i n c i p l e s u n d e r l y i n g t h e

p r o p o s a l were a c c e p t a b l e , t h e procedure was n o t , because t h e e s t a b l i s h m e n t o f
t h e human r i g h t s committee i t s e l f c o n s t i t u t e d an i n f r a c t i o n o f t h e U n i t e d N a t i o n s
Charter. An amendment t o d e l e t e t h e r e f e r e n c e t o t h e committee was, however,
rejected.

DOCUMENTATION

Organ and Records o f Article

session discussion Other documents number

CHR (IX) E/CN.4/SR.344, E/CN.VL.259, 259/Rev.l, 26VAdd.l, 2 8 l ,

391, 392, 393, 282, 283; ESC ( X V I ) , Suppl.8, p a r a s .
4o9 208-21k, annex I B, a r t . 48, and
annex I I I , p a r a s . 158-162

CHR (X) E/CN.4/694/Add.2, 5, 6 48

ESC ( X V I I I ) E/c.2/410

GA ( I X ) 3rd Com., 562nd, 48

563rd, 564th,
566th, 570th,
571st, 572nd
mtgs.
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PRIVILEGES AND IMMUNITIES OF MEMBERS OF THE COMMITTEE

1^3. The p r e s e n t d r a f t covenant does n o t c o n t a i n an a r t i c l e on t h e p r i v i l e g e s

and t h e i m m u n i t i e s o f members o f t h e committee, a l t h o u g h two t e x t s o f such an
a r t i c l e were accepted a t d i f f e r e n t t i m e s . The f i r s t t e x t p r o v i d e d t h a t " t h e
members o f t h e committee and t h e s e c r e t a r y , when engaged i n t h e b u s i n e s s o f t h e
committee, s h a l l e n j o y d i p l o m a t i c p r i v i l e g e s and i m m u n i t i e s " . The second t e x t
was t o t h e e f f e c t t h a t " t h e members o f t h e committee s h a l l , when engaged upon t h e
business o f t h e committee, e n j o y i n t h e t e r r i t o r y o f each S t a t e p a r t y t o t h i s
covenant such p r i v i l e g e s and i m m u n i t i e s as may be agreed between such S t a t e s and
the Secretary-General o f t h e U n i t e d Nations". Stipulations such as p r i v i l e g e s
and i m m u n i t i e s " s i m i l a r t o those o f t h e U n i t e d N a t i o n s " o r t o t h o s e o f
"government r e p r e s e n t a t i v e s a c c r e d i t e d t o t h e U n i t e d N a t i o n s " were c o n s i d e r e d as
open t o ambiguous i n t e r p r e t a t i o n s .
ikh. Those i n f a v o u r o f t h e f i r s t t e x t expressed t h e view t h a t t h e importance o f
the proposed, committee, w h i c h would c o n s i s t o f eminent persons e l e c t e d b y t h e
h i g h e s t j u d i c i a l organ o f t h e U n i t e d N a t i o n s , s h o u l d n o t be d i s r e g a r d e d . While
t r a d i t i o n a l d i p l o m a t i c p r i v i l e g e s and i m m u n i t i e s m i g h t be o f wide scope, t h e
i n c l u s i o n o f t h e words "when engaged i n t h e business o f t h e committee" would
f u r n i s h governments w i t h s u f f i c i e n t s a f e g u a r d s . The t e x t , i t was s t r e s s e d , was
the same as t h a t o f a r t i c l e 19 o f t h e S t a t u t e o f t h e I n t e r n a t i o n a l Court o f
J u s t i c e , w h i c h had n o t g i v e n r i s e t o c o m p l i c a t i o n s . Moreover, i n o r d e r t o i n s u r e
u n i f o r m i t y and t o cover v a r i o u s e v e n t u a l i t i e s , such as committee meetings o u t s i d e
Headquarters o r i n c o u n t r i e s n o t p a r t i e s t o t h e covenant, i t was e s s e n t i a l t o
adopt a g e n e r a l t e x t .

1^5. On t h e o t h e r hand, t h e f i r s t t e x t was c o n s i d e r e d by some t o be t o o wide.

I t was f e l t t h a t i n i n t e r n a t i o n a l law d i p l o m a t i c p r i v i l e g e s and i m m u n i t i e s
covered an e x t e n s i v e f i e l d , w i d e r f o r example t h a n t h e U n i t e d N a t i o n s
Convention on P r i v i l e g e s and I m m u n i t i e s o f 13 F e b r u a r y 1946. I t was contended
that national l e g i s l a t u r e s were becoming i n c r e a s i n g l y r e l u c t a n t t o extend
p r i v i l e g e s and i m m u n i t i e s t o members and o f f i c i a l s o f an i n c r e a s i n g number o f
i n t e r n a t i o n a l bodies. I t would, t h e r e f o r e , be p r e f e r a b l e t o adopt a f l e x i b l e
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t e x t whereby t h e p r i v i l e g e s and i m m u n i t i e s o f t h e committee members w o u l d be

s e t t l e d b y agreement between th S e c r e t a r y - G e n e r a l and t h e S t a t e s concerned.
T h i s w o u l d a l s o a v o i d a g e n e r a l commitment b y S t a t e s p a r t i e s t o t h e covenant
w h i c h m i g h t never r e c e i v e t h e members o f t h e committee w i t h i n t h e i r territory.
l46. Another p o i n t o f view was t h a t i t m i g h t be b e t t e r t o p r o v i d e f o r a
r e f e r e n c e t o t h e U n i t e d N a t i o n s C o n v e n t i o n on P r i v i l e g e s and I m m u n i t i e s w i t h
p a r t i c u l a r emphasis on i t s a r t i c l e s V and V I , w h i c h d e a l t w i t h t h e p r i v i l e g e s
and i m m u n i t i e s o f " e x p e r t s " and o f " o f f i c i a l s " o f the United Nations. I t was,
however, doubted whether t h e p r o v i s i o n s o f another i n t e r n a t i o n a l i n s t r u m e n t c o u l d
be a u t o m a t i c a l l y a p p l i e d t o t h e members o f t h e committee. I t was q u e s t i o n e d
whether i t was c o r r e c t , and even a d v i s a b l e i n view o f t h e h i g h q u a l i f i c a t i o n s o f
t h e members o f t h e committee, t o r e f e r t o them as " e x p e r t s " w i t h i n t h e meaning
of t h a t convention. I t was a l s o suggested t h a t agreements t o be concluded b y
the Secretary-General w i t h d i f f e r e n t S t a t e s s h o u l d be such as t o c o n f e r on t h e
members o f t h e committee a t l e a s t t h e s t a t u s o f " e x p e r t s " r e c o g n i z e d i n that
Convention.

DOCUMENTATION

Organ and Records o f Article

session discussion Other documents number

CHR (VI) E/CNA/SR.189 E/CN.4/474, a r t . 11; E S C ( X l ) , s u p p l . 5,

a r t . 29

ESC ( X I ) E/AC.7/SR.149 29

CHR ( V I I ) E/CN.4/SR.239 E/CN.4/530, p a r a . 43, 556, 560/Rev.l,

617; ESC ( X I I I ) , s u p p l . 9, annex I , 29
a r t . 43

CHR ( I X ) E/CN.4/SR.350 ;
E/CN.4/L.239; ESC ( X V l ) , s u p p l . 8,
paras. 107-112, and annex I I I , 43
p a r a s . 163-I65
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TEE FUNCTIONS OF TEE COMMITTEE I N RELATION TO SPECIAL

PROCEDURES ESTABLISHED BY THE UNITED NATIONS, SPECIALIZED
AGENCIES AND REGIONAL ORGANIZATIONS

ll+7. The q u e s t i o n o f t h e d e l i m i t a t i o n o f t h e powers and f u n c t i o n s o f t h e human

r i g h t s committee i n r e l a t i o n t o procedures e s t a b l i s h e d b y t h e U n i t e d N a t i o n s and
s p e c i a l i z e d a g e n c i e s , and r e g i o n a l o r g a n i z a t i o n s , was t h e s u b j e c t o f c o n s i d e r a b l e
discussion. I n so f a r as t h e I n t e r n a t i o n a l Court o f J u s t i c e was concerned,
d e c i s i o n s were t a k e n w h i c h r e f l e c t e d t h e view t h a t t h e competence o f t h e Court was
35/
not t o be a f f e c t e d by t h e p r o v i s i o n s r e l a t i n g t o t h e human r i g h t s c o m m i t t e e , '
Opinions c o n c e r n i n g t h e d e l i m i t a t i o n o f t h e f u n c t i o n s o f t h e committee i n
r e l a t i o n t o o t h e r p r o c e d u r e s , however, v a r i e d .
ihQ. The p r e s e n t t e x t o f t h e d r a f t covenant does n o t i n c l u d e a p r o v i s i o n on
t h i s matter. There was a d r a f t , however, w h i c h p r o v i d e d t h a t t h e human r i g h t s
committee was " t o t a k e no a c t i o n w i t h r e g a r d t o any m a t t e r f o r w h i c h any organ
or s p e c i a l i z e d agency o f t h e U n i t e d N a t i o n s o r any organ e s t a b l i s h e d under t h e
auspices o f t h e U n i t e d N a t i o n s o r one o f i t s s p e c i a l i z e d agencies competent t o
do so, had e s t a b l i s h e d a s p e c i a l procedure b y w h i c h t h e S t a t e s concerned were
/
governed. '
1^9. The view was advanced t h a t t h e r e s h o u l d be no d u p l i c a t i o n o f e x i s t i n g
machinery o r o f f u n c t i o n s , t h a t t h e competence o f e x i s t i n g organs o f t h e U n i t e d
N a t i o n s and t h e s p e c i a l i z e d agencies s h o u l d be r e c o g n i z e d and s a f e g u a r d e d , and
t h a t t h e committee s h o u l d have t h e d u t y t o p r o t e c t human r i g h t s i n g e n e r a l i n
a l l cases w h i c h were n o t covered b y o t h e r p r o v i s i o n s . The committee s h o u l d n o t ,
f o r example, encroach upon t h e power e x e r c i s e d under t h e C h a r t e r by t h e
T r u s t e e s h i p C o u n c i l o r upon t h e f u n c t i o n s o f c e r t a i n s p e c i a l i z e d a g e n c i e s , such
as t h e ILO, w h i c h was a l r e a d y d e a l i n g w i t h q u e s t i o n s a r i s i n g o u t o f
i n t e r n a t i o n a l l a b o u r c o n v e n t i o n s . I t was t h o u g h t t h a t t h e aim s h o u l d be t o
55/ See under a r t i c l e hi.
36/ ESC ( X V I ) , s u p p l . 8, para.169.
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a v o i d o v e r l a p p i n g , t o u t i l i z e t e c h n i c a l and e x p e r t knowledge t o t h e f u l l e s t and

t o employ methods o f p r o v e d e f f i c a c y . I t was d e s i r a b l e t o u t i l i z e t h e b e s t
methods i n each case and t o p r e v e n t d i f f e r e n c e s t h a t c o u l d e f f e c t i v e l y be d e a l t
-with on t h e t e c h n i c a l plane f r o m d e t e r i o r a t i n g i n t o d i s p u t e s between S t a t e s . The
F a c t - F i n d i n g and C o n c i l i a t i o n Commission on Freedom o f A s s o c i a t i o n , e s t a b l i s h e d
by t h e Governing Body o f t h e I n t e r n a t i o n a l Labour O f f i c e on b e h a l f o f t h e ILO
and t h e Economic and S o c i a l C o u n c i l , was c i t e d as an example o f e f f e c t i v e
c o l l a b o r a t i o n between t h e U n i t e d Nations and t h e s p e c i a l i z e d agencies. I t was
p o i n t e d o u t t h a t t h e s p e c i a l i z e d agencies had l o n g experience i n t h e promotion
o f t h e r i g h t s f a l l i n g w i t h i n t h e i r competence, and t h e i r e x p e r t knowledge and
s p e c i a l procedures c o u l d i n most cases produce b e t t e r r e s u l t s . I t d i d n o t seem
wise t o i n s i s t t h a t t h e committee s h o u l d a c t on a l l cases, i f b e t t e r r e s u l t s
c o u l d be a c h i e v e d i n o t h e r ways. T h i s was a l s o t h e view o f some o f t h e
s p e c i a l i z e d agencies, such as ILO, UNESCO and WHO, who f a v o u r e d t h e i n c l u s i o n o f
t h e p r o v i s i o n mentioned above.

150. Others, however, c o n s i d e r e d t h e p r o v i s i o n t o o r e s t r i c t i v e . The v a l u a b l e

work o f o t h e r bodies o f t h e U n i t e d N a t i o n s , such as t h e T r u s t e e s h i p C o u n c i l , and
s p e c i a l i z e d agencies, such as ILO, was r e c o g n i z e d , b u t i t was f e l t t h a t t h e
committee, c o n s i s t i n g o f o u t s t a n d i n g and q u a l i f i e d persons and r e p o r t i n g t o t h e
General Assembly, s h o u l d n o t be debarred f r o m a c t i n g because p r e s e n t o r f u t u r e
organs o f t h e U n i t e d Nations and t h e s p e c i a l i z e d agencies c o u l d be s e i z e d by
S t a t e s o f d i s p u t e s r e l a t i n g t o human r i g h t s . There was no w i s h t o hamper o r
o b s t r u c t t h e use o f o t h e r methods and t h e committee s h o u l d c e r t a i n l y pay due heed
t o them and s h o u l d make t h e f u l l e s t use o f t h e f i n d i n g s and i n v e s t i g a t i o n s o f
o t h e r b o d i e s , b u t a d e l i m i t a t i o n o f f u n c t i o n s c o u l d o n l y take* p l a c e where t h e
r e s p e c t i v e f u n c t i o n s c o i n c i d e d or were e q u a l l y e f f e c t i v e ; o t h e r w i s e , t h e r e was
danger t h a t t h e g r e a t e r competence o f one organ m i g h t be e x c l u d e d i n f a v o u r o f
t h e l e s s e r competence o f another organ. F u r t h e r , i t might even be m a i n t a i n e d
t h a t , because human r i g h t s were w i t h i n t h e purview o f t h e Charter, States p a r t i e s
t o a d i s p u t e i n v o l v i n g a l l e g e d v i o l a t i o n o f t h e covenant s h o u l d i g n o r e t h e
committee a l t o g e t h e r and t a k e t h e case d i r e c t t o t h e General Assembly. The o n l y
procedure comparable t o t h e human r i g h t s committee procedure, i t was s u b m i t t e d ,
was t h a t e s t a b l i s h e d b y t h e ILO c o n s t i t u t i o n r e l a t i n g t o ILO c o n v e n t i o n s . I t
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was p o i n t e d o u t t h a t t h e procedure e s t a b l i s h e d b y t h e Economic and S o c i a l C o u n c i l

and t h e ILO f o r f a c t - f i n d i n g and c o n c i l i a t i o n as r e g a r d s freedom o f a s s o c i a t i o n
was n o t b i n d i n g upon S t a t e s , s i n c e t h e consent o f t h e S t a t e concerned was
r e q u i r e d b e f o r e t h e procedure c o u l d be s e t i n m o t i o n , whereas t h e procedure
contemplated i n t h e covenant was d i f f e r e n t and w o u l d , t h e r e f o r e , l e a d t o no
duplication or d i f f i c u l t i e s . I t was a l s o t h o u g h t t h a t t h e p r o p o s a l as d r a f t e d d i d
n o t s p e c i f y as t o who was t o decide whether a s p e c i a l procedure was a p p l i c a b l e
t o a p a r t i c u l a r case and whether t h e o r g a n concerned was competent t o d e a l w i t h
it.
151. As r e g a r d s t h e T r u s t e e s h i p C o u n c i l , t h e view was expressed, on t h e one hand,
t h a t a l l v i o l a t i o n s o f human r i g h t s i n T r u s t T e r r i t o r i e s were c l e a r l y w i t h i n
t h e scope o f t h e s p e c i a l p r o v i s i o n s o f t h e C h a r t e r d e a l i n g w i t h t h e t r u s t e e s h i p
system and t h e T r u s t e e s h i p C o u n c i l c o u l d n o t be d i v e s t e d o f i t s supreme
competence i n a l l m a t t e r s a f f e c t i n g . T r u s t T e r r i t o r i e s . On t h e o t h e r hand, t h e
o p i n i o n was v o i c e d t h a t t h e T r u s t e e s h i p C o u n c i l was a p o l i t i c a l body w h i c h was
n o t s p e c i f i c a l l y concerned w i t h human r i g h t s and t h e i r p r o t e c t i o n p e r se, b u t
w i t h the general a d m i n i s t r a t i o n o f Trust T e r r i t o r i e s . Under those circumstances,
it c o u l d h a r d l y be s a i d t h a t t h e T r u s t e e s h i p C o u n c i l p r o v i d e d an adequate
s p e c i a l procedure. A t t h e same t i m e , t h e r e was no reason why b o t h procedures
s h o u l d n o t be r e g a r d e d as m u t u a l l y c o m p a t i b l e and e q u a l l y necessary.
152. Another p r o p o s a l p r o v i d e d : "The committee s h a l l d e a l w i t h any m a t t e r
r e f e r r e d t o i t under a r t i c l e 40. I t s competence s h a l l n o t be i m p a i r e d b y t h e
f a c t t h a t any g i v e n m a t t e r f a l l s w i t h i n t h e competence o f another organ o r
s p e c i a l i z e d agency o f t h e U n i t e d N a t i o n s . The committee s h a l l decide how f a r
i t s h o u l d make use o f t h e f i n d i n g s and i n v e s t i g a t i o n s c a r r i e d o u t by such
37/
bodies." T h i s p r o p o s a l was c o n s i d e r e d t o be more i n l i n e w i t h t h e o b j e c t i v e
o f those who opposed t h e o t h e r t e x t .
153. T h i s p r o p o s a l was, however, c o n s i d e r e d b y some t o be somewhat i n f l e x i b l e .
I t was p o i n t e d o u t t h a t , as d r a f t e d , t h e p r o v i s i o n w o u l d o b l i g e t h e committee
t o a c t i n every matter r e f e r r e d t o i t . The committee's competence w o u l d remain

37/ ESC ( X V I ) , s u p p l . 8, para. 169.

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f u l l y e f f e c t i v e , and w o u l d n o t be d i m i n i s h e d o r a f f e c t e d b y whatever competence

o t h e r U n i t e d N a t i o n s organs o r s p e c i a l i z e d agencies had. The committee would,
thus become a s o r t o f c o u r t o f appeal f r o m d e c i s i o n s t a k e n b y o t h e r b o d i e s , and
whatever t h e f i n d i n g s and i n v e s t i g a t i o n s o f o t h e r b o d i e s might be, t h e
committee w o u l d e n j o y freedom t o make use o f them o r t o i g n o r e them a l t o g e t h e r
at i t s choice. Such a p r o v i s i o n w o u l d have grave r e p e r c u s s i o n s on t h e
s p e c i a l i z e d agencies and on t h e i r r e l a t i o n s h i p w i t h t h e U n i t e d N a t i o n s .
154. O t h e r s , on t h e c o n t r a r y , t h o u g h t these arguments t o be based on a
misapprehension. The committee would n o t be o b l i g e d t o d e a l w i t h e v e r y case
r e f e r r e d t o i t , b u t i t w o u l d n o t be e x c l u d e d f r o m d e a l i n g w i t h a case merely
because i t might f a l l w i t h i n some procedure o f another organ, i r r e s p e c t i v e o f
the adequacy o f t h a t procedure. I t gave t h e committee a d i s c r e t i o n t h a t was
made necessary b y t h e r i s k t h a t t h e procedures and remedies o f o t h e r bodies
might prove l e s s e f f e c t i v e t h a n t h a t o f t h e committee. There was no q u e s t i o n o i
a u t o m a t i c a l l y e n c r o a c h i n g on t h e competence o f o t h e r b o d i e s . There was a l s o no
i n t e n t i o n o f making t h e committee i n t o , a c o u r t o f appeal f r o m d e c i s i o n s t a k e n b y
s p e c i a l i z e d agencies o r o t h e r organs o f t h e U n i t e d N a t i o n s , and r e v e r s a l o f such
d e c i s i o n s was n o t contemplated. A t t h e same t i m e , i t was b o t h l o g i c a l and
p r a c t i c a l t o u t i l i z e f i n d i n g s , e x p e r i e n c e , t e c h n i c a l knowledge and d a t a o f o t h e r
bodies.

155- I n t h e o p i n i o n o f some, t h e e x c l u s i o n f r o m t h e purview o f t h e committee o f

matters "with w h i c h any organ o r a s p e c i a l i z e d agency i s d e a l i n g under a
38/
s p e c i a l procedure b y w h i c h t h e S t a t e s concerned a r e g o v e r n e d , " ' v a s more
a p p r o p r i a t e i n o r d e r t o p r o v i d e a g a i n s t e x c e s s i v e r e s t r i c t i o n o f t h e committee's
sphere o f competence. I t was contended t h a t s i t u a t i o n s might a r i s e where an
organ o r a s p e c i a l i z e d agency o f t h e U n i t e d N a t i o n s , though competent t o d e a l
w i t h a p a r t i c u l a r m a t t e r , might f a i l t o t a k e i t up, o r t h a t t h e S t a t e s concerned
might p r e f e r t o p l a c e t h e m a t t e r b e f o r e t h e committee. I n such e v e n t u a l i t i e s ,
the committee s h o u l d be f r e e t o a c t , a l t h o u g h i t w o u l d n o t d e a l w i t h a m a t t e r
w h i c h was a c t u a l l y b e i n g handled b y another organ. T h i s p r o p o s a l was, however,

38/ E/CN.4/SR.249-
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o b j e c t e d t o as i t p r o v i d e d f o r t h e s e t t i n g - u p o f a l t e r n a t i v e procedures f o r
d e a l i n g w i t h one and t h e same s u b j e c t . I t was contended t h a t i t was e s s e n t i a l
t o a v o i d t h e o v e r l a p p i n g o f j u r i s d i c t i o n s and t h a t t h e i n s t i t u t i o n o f a K i n d
of c o m p e t i t i v e system between v a r i o u s organs and s p e c i a l i z e d agencies w o u l d have
adverse e f f e c t s on a l l o f them.
156. Another o p i n i o n f a v o u r e d t h e r i g h t o f r e g i o n a l o r g a n i z a t i o n s t o s e t t l e their
problems a t t h e r e g i o n a l l e v e l . I t was n o t e d t h a t w i t h i n t h e framework o f t h e
C o u n c i l o f Europe, s p e c i a l procedures were b e i n g s e t up f o r t h e p r o t e c t i o n o f
human r i g h t s and t h a t a s i m i l a r t r e n d e x i s t e d i n t h e Americas. The European
Convention f o r t h e P r o t e c t i o n o f Human E i g h t s and Fundamental Freedoms s i g n e d a t
Rome on k November 1950, f o r example, l a i d down p r o v i s i o n s f o r d e a l i n g w i t h
complaints o f v i o l a t i o n s o f t h a t convention, i n c l u d i n g the establishment of a
commission and a c o u r t o f human r i g h t s . I t a l s o p r o v i d e d i n a r t i c l e 62 t h a t
p a r t i e s t o t h e c o n v e n t i o n agreed t h a t "except b y s p e c i a l agreement, t h e y w i l l
n o t a v a i l themselves o f t r e a t i e s , conventions o r d e c l a r a t i o n s e n f o r c e d between
them f o r t h e purpose o f s u b m i t t i n g , b y way o f p e t i t i o n , a d i s p u t e a r i s i n g o u t o f
t h e i n t e r p r e t a t i o n o r a p p l i c a t i o n o f t h i s Convention t o a means o f s e t t l e m e n t
o t h e r t h a n those p r o v i d e d f o r i n t h i s Convention." The i d e a o f e x c l u d i n g
s p e c i a l procedures e s t a b l i s h e d b y r e g i o n a l o r g a n i z a t i o n s f r o m t h e competence o f
t h e committee was, however, t h o u g h t o f as u n d u l y l i m i t i n g t h e work o f t h e
39/
committee, and a p r o p o s a l o n t h e s u b j e c t was r e j e c t e d .
157- The view was a l s o expressed t h a t t h e r e was no need t o p r o v i d e f o r any
p r o v i s i o n s concerning o t h e r procedures because o f A r t i c l e 103 o f the Charter,
a c c o r d i n g t o w h i c h , i n t h e event o f a c o n f l i c t between t h e o b l i g a t i o n s under
any o t h e r i n t e r n a t i o n a l agreement, t h e o b l i g a t i o n s o f Members under t h e C h a r t e r
shall prevail. Another o p i n i o n was t h a t , r a t h e r t h a n i n c l u d e a g e n e r a l
p r o v i s i o n on t h e m a t t e r , i t w o u l d be b e t t e r t o s p e c i f y t h e s p e c i a l procedures
w h i c h were t o be e x c l u d e d f r o m t h e competence o f t h e committee under a r t i c l e 40
of t h e covenant, i f such procedures were as e f f e c t i v e as and comparable t o those
of t h e committee.

39/ ESC ( X I I I ) , s u p p l . 9, para. 85.

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DOCUMENTATION

Organ and Records o f Article

session discussion Other documents number

CHR ( V I ) E/CN.VSR.176, 190, . E/CN.4/474, a r t . 21; ESC ( X l ) ,

191 s u p p l . 5, p a r a . 4 2 , annex I I

ESC ( X I ) E/AC7/SR.147, lk9

E / L . 6 8 , p a r a s . 101 and 103
150

GA ( V ) 3rd Com., 300th, Annexes, a . i . 63, A/1559, p a r a . l 6

301st mtgs.

CHR ( V I I ) E/CN.4/SR.209, 210, E/CN.V515/AddA, 13 and 15, 530,

211, 212, 249 p a r a s . 63, 6 4 , 66 and 71, 552,
560/Rev.l, 617, 620, 634/Rev.l;
ESC ( X I I I ) , suppl, p a r a . 85,
annex I , a r t . 53

ESC ( X I I I ) 523rd mtg. E/2057/Add.2 53

GA ( V I ) 3rd Com., 363rd, 53

371st mtgs.

CHR (VIII) E/CN.V530/Add.l, p a r a . 2 4 53

CHR ( I X ) E/CN.4/SR-344, 385, E/CN.4/675, p a r a s . 8-10, 53

386 L.232, 235/Rev.2, 245, 277,
278, NGO/49; ESC ( X V I ) , s u p p l . 8 ,
paras.I68-I76, and annex I I I ,
p a r a s . I68-I74

ESC ( X V I ) E/2484

CHR ( X ) E/CN.4/692, 692/Add.l, 694/Add.2,

702 n o . I

ESC ( X V I I I ) E/2621

GA ( I X ) 3rd Com., 562nd,

566th, 568th,
576th mtgs.
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REQUESTS TO THE COMMITTEE FOR INFORMATION, ASSISTANCE AND ADVICE

158. The f o l l o w i n g d r a f t a r t i c l e , -which -was s u b s e q u e n t l y w i t h d r a w n , was

proposed:
I t s h a l l be t h e d u t y o f t h e committee t o c o n s i d e r any r e q u e s t f o r
i n f o r m a t i o n o r a s s i s t a n c e , and any p r o p o s a l o r p r o j e c t w h i c h any S t a t e
P a r t y t o t h e p r e s e n t covenant may w i s h t o s u b m i t , w i t h a view t o p r o m o t i n g
t h e a p p l i c a t i o n o f t h e p r e s e n t covenant, w i t h o u t r e f e r e n c e t o t h e
p r o v i s i o n s o f a r t i c l e ko.
159- The view was expressed t h a t i m p l e m e n t a t i o n s h o u l d have b o t h a n e g a t i v e
and a p o s i t i v e purpose, t h e f i r s t b e i n g t o p r e v e n t v i o l a t i o n s o f t h e covenant,
and t h e second t o f u r n i s h a l l t h e a s s i s t a n c e w h i c h S t a t e s m i g h t need i n f u l l y
realizing i t s objectives. The second a s p e c t , w h i c h was covered i n t h e d r a f t
covenant on economic, s o c i a l and c u l t u r a l r i g h t s , was nowhere p r o v i d e d f o r i n
t h e d r a f t covenant on c i v i l and p o l i t i c a l r i g h t s . The need c o u l d be met b y
i n v e s t i n g t h e committee, whose members w o u l d be persons q u a l i f i e d t o assemble
a corpus o f i n f o r m a t i o n and j u r i s p r u d e n c e , w i t h t h e necessary powers t o a c t as
an organ f o r t h e c e n t r a l i z a t i o n o f i n f o r m a t i o n and i n t e r p r e t a t i o n o f t h e
covenant. The committee c o u l d f u r n i s h i n f o r m a t i o n and advice on t h e ways and
means b y w h i c h a S t a t e c o u l d b e s t observe and f u l f i l i t s o b l i g a t i o n s under t h e
covenant. Moreover, i n o r d e r t o reduce c o n f l i c t s and d i s p u t e s , S t a t e s should
be a l l o w e d t o c o n s u l t w i t h t h e committee, e s p e c i a l l y as t o whether any f a c t
or s i t u a t i o n c o n s t i t u t e d a v i o l a t i o n o f t h e covenant o r n o t .
loo. Those opposed t o t h e p r o p o s a l r e f e r r e d t o t h e f a c t t h a t t h e t a s k o f t h e
committee was l i m i t e d t o t h a t o f f a c t - f i n d i n g and c o n c i l i a t i o n . For t h e t i m e
b e i n g , i t was u n l i k e l y t h a t S t a t e s w o u l d be w i l l i n g t o r e s t r i c t f u r t h e r their
sovereignty. I n t h e view o f some, t h e p r o p o s a l , l i k e t h e whole system o f
i n t e r n a t i o n a l I m p l e m e n t a t i o n , w o u l d be an i n f r i n g e m e n t o f t h e s o v e r e i g n t y o f
States. I t was a l s o f e l t t h a t t h e committee s h o u l d n o t be a r e f e r e n c e c e n t r e ,
a source f o r d i s s e m i n a t i n g i n f o r m a t i o n o r an a d v i s o r y agency. There were o t h e r
bodies b e t t e r q u a l i f i e d and equipped t o p e r f o r m such f u n c t i o n s . The U n i t e d
N a t i o n s S e c r e t a r i a t , f o r example, c o u l d and s h o u l d be u t i l i z e d f o r such purposes.
B e s i d e s , t h e Commission on Human R i g h t s c o u l d n o t d i v e s t i t s e l f o f I t s
r e s p o n s i b i l i t i e s w h i c h were d e r i v e d f r o m t h e C h a r t e r and w h i c h r e l a t e d t o a l l
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Member S t a t e s . I t was mentioned f u r t h e r t h a t t h e r e was no i n s t a n c e o f a

q u a s i - j u d i c i a l body b e i n g empowered t o a d v i s e b e f o r e h a n d on a m a t t e r t h a t might
s u b s e q u e n t l y be r e f e r r e d t o i t .

DOCUMENTATION

Organ and Records o f Article

session discussion Other documents number

CHR ( I X ) E/CN.ySR.344, E/CN.4/L.247; E S C ( X V I ) , suppi.8,

389 p a r a s . 192-194, and annex I I I ,
p a r a s . 177-178
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ARTICLE U9

R e p o r t i n g procedure

1. The S t a t e s P a r t i e s t o t h i s Covenant u n d e r t a k e t o submit a

r e p o r t on t h e l e g i s l a t i v e o r o t h e r measures, i n c l u d i n g j u d i c i a l
remedies, w h i c h t h e y have adopted and w h i c h g i v e e f f e c t t o t h e
r i g h t s r e c o g n i z e d h e r e i n ( a ) w i t h i n one y e a r o f t h e e n t r y i n t o
f o r c e o f t h e Covenant f o r t h e S t a t e concerned and ( b ) t h e r e a f t e r
whenever t h e Economic and S o c i a l C o u n c i l so r e q u e s t s upon
recommendation o f t h e Commission on Human R i g h t s and a f t e r
c o n s u l t a t i o n w i t h the States P a r t i e s .

2. Reports s h a l l i n d i c a t e f a c t o r s and d i f f i c u l t i e s , i f any,

a f f e c t i n g the p r o g r e s s i v e implementation o f A r t i c l e 22,
p a r a g r a p h 4, o f t h i s Covenant.

3 A l l r e p o r t s s h a l l be s u b m i t t e d t o t h e S e c r e t a r y - G e n e r a l o f
the U n i t e d N a t i o n s f o r t h e Economic and S o c i a l C o u n c i l which may
t r a n s m i t them t o t h e Commission on Human R i g h t s f o r i n f o r m a t i o n ,
s t u d y and, i f necessary, g e n e r a l recommendations.

4. The s p e c i a l i z e d agencies s h a l l r e c e i v e such p a r t s o f t h e

r e p o r t s c o n c e r n i n g t h e r i g h t s as f a l l w i t h i n t h e i r r e s p e c t i v e
fields of activity.

5. The S t a t e s P a r t i e s d i r e c t l y concerned, and t h e above

a g e n c i e s , may submit t o t h e Economic and S o c i a l C o u n c i l
o b s e r v a t i o n s on any g e n e r a l recommendation t h a t may be made i n
accordance w i t h p a r a g r a p h 3 o f t h i s a r t i c l e .

40/
The i n c l u s i o n o f a r e p o r t i n g procedure i n t h e C o v e n a n t '
161. O b j e c t i o n was r a i s e d t o t h e i n c l u s i o n o f any r e p o r t i n g procedure i n t h e
covenant on c i v i l and p o l i t i c a l r i g h t s on t h e grounds t h a t any such procedures
was c o n t r a r y t o t h e U n i t e d N a t i o n s C h a r t e r , i n p a r t i c u l a r t o A r t i c l e 2,
p a r a g r a p h 7, and c o n s t i t u t e d a v i o l a t i o n o f n a t i o n a l s o v e r e i g n t y . Such i n c l u s i o n
c o u l d n o t a s s i s t i n t h e r e a l i z a t i o n o f r i g h t s and would o n l y l e a d t o t e n s i o n s
between S t a t e s .

ko/ E/CN.h/SR.241, 249, 355, 90 and 426-30, E/CN.4/530/Add.l, p a r a . 29,

E/CN.4/637, E/CN.4/694/Add.3, E/CN.4/L.229 and L-315, ESC ( X I I l ) , suppl.9,
annex I I , E/2621, E/CN.4/NG0.24 and 36, GA ( V l ) , 3rd Com., 360th m t g .
p a r a s . 58-59, 3 6 l s t , p a r a . 25, 363rd, p a r a s . 28-29, 370th, p a r a . 26, 371st.,
p a r a . 9 and 388th p a r a . 4 1 , GA ( I X ) , 3rd Com., 562nd mtg. p a r a . 12, 564th,
p a r a . 15, 565th, p a r a s . 29-30, 571st p a r a . 22, 573rd, p a r a s . 10 and 23 and
567th, p a r a . 14, GA ( V l ) , annexes- a . i . 29, A/C.3/565 and A/2112, p a r a . 36
and GA ( I X ) , annexes, a . i . 58, //57 * and A/2808, p a r a . 32.
1
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162. Another o b j e c t i o n t o t h e i n c l u s i o n o f a r e p o r t i n g p r o c e d u r e i n t h e covenant

on c i v i l and p o l i t i c a l r i g h t s arose f r o m an e s s e n t i a l d i f f e r e n c e between t h e two
covenants. Whereas t h e r i g h t s i n t h e covenant on economic, s o c i a l and c u l t u r a l
r i g h t s were d r a f t e d i n g e n e r a l terms and were i n t e n d e d t o be p r o g r e s s i v e l y -
r e a l i z e d , t h e r i g h t s i n t h e covenant on c i v i l and p o l i t i c a l r i g h t s were d r a f t e d
i n p r e c i s e terms and were i n t e n d e d , i n t h e main, t o be a p p l i e d i m m e d i a t e l y . That
b e i n g so, t h e r e was no e v i d e n t purpose i n i n c l u d i n g a r e p o r t i n g p r o c e d u r e , and t o
do so would i n e v i t a b l y d e t r a c t f r o m t h e immediacy o f t h e s e o b l i g a t i o n s . A more
a p p r o p r i a t e i m p l e m e n t a t i o n machinery i n t h e f o r m o f t h e human r i g h t s committee
p r o c e d u r e had a l r e a d y been p r o v i d e d f o r i n t h e covenant on c i v i l and p o l i t i c a l
rights.
163. I n s u p p o r t o f t h e i n c l u s i o n o f some f o r m o f r e p o r t i n g procedure i n t h e
covenant i t was observed t h a t r e p o r t i n g would c o n s t i t u t e a u s e f u l exchange o f
i n f o r m a t i o n between S t a t e s p a r t i e s , would make governments more conscious o f
t h e i r o b l i g a t i o n s and w o u l d emphasize t h e c o n s t r u c t i v e approach t o t h e p r o m o t i o n
o f human r i g h t s , based on i n t e r n a t i o n a l c o - o p e r a t i o n . R e p o r t i n g would a l s o a l l o w
a .stock-taking o f t h e standards a p p l i e d i n t h e various p a r t s o f t h e w o r l d , thus
f a c i l i t a t i n g t h e c o d i f i c a t i o n and development o f i n t e r n a t i o n a l l a w . The
i n f o r m a t i o n s u p p l i e d would a l s o be V a l u a b l e t o t h e human r i g h t s committee i n
cases o f d i s p u t e s and i t would keep t h e committee i n f o r m e d o f t h e " a v a i l a b l e
d o m e s t i c remedies" r e f e r r e d t o i n A r t i c l e hi o f t h e d r a f t covenant. I t was
p o i n t e d o u t t h a t one p r o v i s i o n o f t h e covenant, namely, A r t i c l e 22, p a r a g r a p h h }

r e l a t i n g t o e q u a l i t y o f r i g h t s between spouses as t o m a r r i a g e , d u r i n g m a r r i a g e
and a t i t s d i s s o l u t i o n , was n o t i n t e n d e d t o be implemented i m m e d i a t e l y .
A t t e n t i o n was drawn t o t h e f a c t t h a t a r e p o r t i n g p r o c e d u r e was p r o v i d e d f o r
under A r t i c l e h8 o f t h e covenant c o n c e r n i n g t h e i m p l e m e n t a t i o n o f t h e a r t i c l e

on t h e r i g h t o f s e l f - d e t e r m i n a t i o n .
l6h. On t h e o t h e r hand, i t was doubted whether t h e human r i g h t s committee
w o u l d be a b l e t o u t i l i z e t h e i n f o r m a t i o n made a v a i l a b l e t h r o u g h any r e p o r t i n g
p r o c e d u r e , and i t was f e l t t h a t t h e k i n d o f i n f o r m a t i o n envisaged was always
a v a i l a b l e i n p u b l i s h e d f o r m and i n such p u b l i c a t i o n s as t h e U n i t e d N a t i o n s
Yearbook on Human R i g h t s .
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165. The disagreement as t o t h e d e s i r a b i l i t y o f i n c l u d i n g a r e p o r t i n g p r o c e d u r e

was due p a r t l y t o t h e d i f f e r e n c e s o f o p i n i o n c o n c e r n i n g t h e c o n s t r u c t i o n t o he
p l a c e d on A r t i c l e 2, p a r a g r a p h 2 o f t h e d r a f t covenant. The o p i n i o n was
expressed t h a t a c t i o n b y a S t a t e needed t o implement an i n t e r n a t i o n a l t r e a t y
must be completed by t h e t i m e o f r a t i f i c a t i o n , and t h a t A r t i c l e 2, p a r a g r a p h 2,
was n o t i n t e n d e d t o make an e x c e p t i o n t o t h i s p r i n c i p l e . A n o t h e r v i e w expressed
was t h a t , b e f o r e r a t i f i c a t i o n , t h e c o n s t i t u t i o n a l p r o c e d u r e s n e c e s s a r y t o b r i n g
domestic l a w i n t o harmony w i t h t h e covenant must be s e t i n m o t i o n . I n this
connexion, r e f e r e n c e was made t o t h e p r e v i o u s d e l e t i o n (E/2556, p a r a g r a p h 273)
o f t h e words " w i t h i n a r e a s o n a b l e t i m e " f r o m A r t i c l e 2, p a r a g r a p h 2 and t o t h e
u n s a t i s f a c t o r y nature o f t h e present wording o f t h a t p r o v i s i o n . There was some
f e e l i n g t h a t even t h e p r e s e n t w o r d i n g o f t h e p r o v i s i o n l e f t doubt as r e g a r d s t h e
immediate u n d e r t a k i n g o f t h e o b l i g a t i o n s . I t was a l s o argued t h a t , s i n c e t h e
covenant would i n c l u d e p r o v i s i o n s r e l a t i n g t o a much w i d e r range o f s u b j e c t m a t t e r
t h a n d i d t h e average t r e a t y , i t was i m p o s s i b l e t o a p p l y t o i t as s t r i c t a r u l e

as w o u l d n o r m a l l y a p p l y t o t h e i m p l e m e n t a t i o n o f a t r e a t y . The p r o t a g o n i s t s o f
the v i e w t h a t some t i m e m i g h t l e g i t i m a t e l y e l a p s e between r a t i f i c a t i o n and
complete i m p l e m e n t a t i o n argued t h a t i t was d e s i r a b l e t o make p r o v i s i o n s f o r
r e p o r t i n g upon p r o g r e s s made. I t was s a i d , on t h e o t h e r hand, t h a t t o a l l o w t i m e
a f t e r r a t i f i c a t i o n f o r necessary measures t o be t a k e n would make i t d i f f i c u l t
e v e r t o d e t e r m i n e when t h e o b l i g a t i o n s under t h e covenant had been f u l l y
accepted and c o n s e q u e n t l y whether t h e covenant had been v i o l a t e d . I f i t were
d e s i r e d t o a l t e r t h e r u l e o f immediate a p p l i c a b i l i t y t h e n i t would be b e t t e r t o
deal w i t h t h a t matter i n a reservations clause.
166. The v i e w was expressed t h a t t h e system o f p e r i o d i c r e p o r t s i n c l u d e d i n t h e
d r a f t covenant on economic, s o c i a l and c u l t u r a l r i g h t s c o u l d be adapted t o "the
d r a f t covenant on c i v i l and p o l i t i c a l r i g h t s i n o r d e r t o emphasize t h e l i n k
between t h e covenants and meet t h e wishes o f t h e General Assembly as e x p r e s s e d
i n r e s o l u t i o n 5^3 ( V l ) d i r e c t i n g t h e i n c l u s i o n i n t h e two covenants o f as many
s i m i l a r p r o v i s i o n s on measures o f i m p l e m e n t a t i o n as p o s s i b l e , p a r t i c u l a r l y i n so
f a r as t h e r e p o r t s t o be s u b m i t t e d b y S t a t e s were concerned, and w i t h a view t o
p r e v e n t i n g d u p l i c a t i o n w i t h r e p o r t i n g t o s p e c i a l i z e d agencies. The v i e w
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p r e v a i l e d , however, t h a t i t was u n d e s i r a b l e t o t r a n s f e r t h a t system o f p e r i o d i c

r e p o r t s t o t h e d r a f t covenant on c i v i l and p o l i t i c a l r i g h t s i n t o t o .

The s p e c i f i c p r o c e d u r e i n c l u d e d i n t h e c o v e n a n t ^

167. Some o b j e c t i o n s were r a i s e d t o t h e s p e c i f i c procedure w h i c h was e v e n t u a l l y

approved f o r i n c l u s i o n i n t h e d r a f t covenant.
168. I t was t h o u g h t t h a t t o p e r m i t a year t o pass between e n t r y i n t o f o r c e and
submission o f r e p o r t s w o u l d encourage t h e dangerous p r e s u m p t i o n t h a t t h e
o b l i g a t i o n s under t h e covenant on c i v i l and p o l i t i c a l r i g h t s c a l l e d o n l y f o r
p r o g r e s s i v e i m p l e m e n t a t i o n . T h i s concept o f p r o g r e s s i v i t y was seen t o be i m p l i e d
even more i n c l a u s e ( b ) o f p a r a g r a p h 1 s i n c e a c t i o n under t h a t c l a u s e would
presumably t a k e p l a c e two years o r more a f t e r t h e coming i n t o f o r c e o f t h e
covenant f o r t h e S t a t e concerned.
169. The a r t i c l e , i t was observed, would make i t o b l i g a t o r y f o r c o n t r a c t i n g
S t a t e s t o r e p o r t t o t h e C o u n c i l , membership o f w h i c h would i n c l u d e S t a t e s t h a t
had n o t assumed t h e o b l i g a t i o n s embodied i n t h e Covenant. The l a t t e r would
occupy a p r i v i l e g e d p o s i t i o n i n t h a t , w i t h o u t h a v i n g assumed any o b l i g a t i o n
themselves, t h e y would be a b l e t o s u p e r v i s e t h e conduct o f S t a t e s p a r t i e s t o t h e
Covenant and t o d i r e c t c r i t i c i s m and recommendations t o them. That i n e q u a l i t y
would a f f e c t n e a r l y a l l matters w i t h i n t h e sovereignty o f t h e States p a r t i e s t o
the Covenant. The e x t e n t t o w h i c h r e p o r t s s h o u l d be s u b m i t t e d b y t h e S t a t e s
p a r t i e s t o t h e Covenant would be d e t e r m i n e d by t h e same C o u n c i l , i n w h i c h t h e r e
were Member S t a t e s w h i c h would n o t have c o n t r a c t e d any o b l i g a t i o n b u t would
n e v e r t h e l e s s be e n t i t l e d t o v o t e and t a k e d e c i s i o n s . The i n c l u s i o n i n t h e
Covenant o f such a system w o u l d p r e v e n t many S t a t e s f r o m becoming p a r t i e s t o i t .
170. I t was on t h e o t h e r hand p o i n t e d o u t t h a t t h e C o u n c i l on t h e recommendation
of t h e Commission on Human R i g h t s w o u l d be empowered t o r e q u i r e r e p o r t s f r o m
S t a t e s p a r t i e s o n l y a f t e r c o n s u l t a t i o n w i t h those S t a t e s .
171- I t was s t a t e d t h a t t h e words "which t h e y have adopted" r e f e r r e d t o a l l
r e l e v a n t measures t a k e n i n t h e p a s t by t h e S t a t e concerned as w e l l as measures
taken a t t h e time o f r a t i f i c a t i o n .

hi/ E/CN.ySR.427-30 and E/CN/.332-4.

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42/
The r e f e r e n c e t o a r t i c l e 22, p a r a g r a p h 4 o f t h e c o v e n a n t '

172. The second p a r a g r a p h o f t h e a r t i c l e was adopted i n o r d e r t o g i v e

r e c o g n i t i o n t o t h e f a c t t h a t A r t i c l e 22, p a r a g r a p h 4 o f t h e covenant was
d i f f e r e n t f r o m t h e o t h e r p r o v i s i o n s o f t h e covenant, i n t h a t i t i m p l i e d only-
progressive implementation. I t was n o t i n t e n d e d t h a t t h e p a r a g r a p h s h o u l d have
the e f f e c t o f e x c e p t i n g A r t i c l e 22, p a r a g r a p h 4 f r o m t h e g e n e r a l o b l i g a t i o n o f
r e p o r t i n g contained i n paragraph 1 o f t h e a r t i c l e .

43/
The d e t e r m i n a t i o n o f t h e organ t w h i c h r e p o r t s should- be s e n t '
173- The view was expressed t h a t t h e human r i g h t s committee s h o u l d r e c e i v e
r e p o r t s and, i n t h i s connexion, a t t e n t i o n was drawn t o A r t i c l e 4 8 o f t h e covenant
w h i c h p r o v i d e d f o r r e p o r t s t o t h a t committee on t h e i m p l e m e n t a t i o n ofArticle 1,
relating t othe r i g h t of self-determination.
174. Another o p i n i o n was t h a t t h e Commission on Human R i g h t s w o u l d be a more
a p p r o p r i a t e body t o r e c e i v e t h e r e p o r t s . I t was c o n s i d e r e d t h a t t h e human r i g h t s
committee would be a q u a s i - j u d i c i a l organ s e t up f o r t h e v e r y s p e c i f i c purpose o f
r e c e i v i n g c o m p l a i n t s a l l e g i n g non-observance o f t h e covenant and h a v i n g a
membership c a r e f u l l y s e l e c t e d f o r t h i s t a s k , and t h a t t o t r a n s m i t r e p o r t s t o t h e
committee might be t o i n v i t e i t t o pass judgment w i t h o u t b e i n g s e i z e d o f a
c o m p l a i n t b y a S t a t e p a r t y , and w o u l d harm i t s autonomy and independence. I t was
a l s o p o i n t e d o u t t h a t t h e Committee w o u l d , i n any case, have access t o t h e
r e p o r t s r e c e i v e d b y t h e Commission.
175- Paragraph 3 ; however, r e f l e c t s t h e p r e v a i l i n g f e e l i n g t h a t r e p o r t s s h o u l d
be s u b m i t t e d t o t h e Economic and S o c i a l C o u n c i l , f o r p o s s i b l e t r a n s m i s s i o n t o t h e
Commission on Human R i g h t s .
176. I t was e x p l a i n e d t h a t t h e words " g e n e r a l recommendations" had been t a k e n
f r o m t h e system o f p e r i o d i c r e p o r t s adopted f o r i n c l u s i o n i n t h e d r a f t covenant
on economic, s o c i a l and c u l t u r a l r i g h t s . Some doubt was however expressed
whether t h e r e p o r t s c o u l d be used f o r purposes o t h e r t h a n i n f o r m a t i o n and s t u d y .

42/ E/CN.4/SR.427 and 429-30 and E/CW.4/L.333-

43/ E/CN.4/SR.427-30 and E/C.4/L.332-3-
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44/
The r e f e r e n c e t o s p e c i a l i z e d a g e n c i e s '

177- I n s u p p o r t o f p a r a g r a p h 4 i t was argued t h a t , whereas most r i g h t s d e a l t

w i t h i n t h e d r a f t covenant d i d n o t f a l l w i t h i n t h e p u r v i e w o f any s p e c i a l i z e d
agency, t h e r e were some e x c e p t i o n s , f o r i n s t a n c e , f o r c e d l a b o u r and freedom o f
association. Paragraph 5 was d e r i v e d f r o m t h e system o f p e r i o d i c r e p o r t s
i n c l u d e d i n t h e d r a f t covenant on economic, s o c i a l and c u l t u r a l r i g h t s . I t was
urged, however, t h a t t h e l a t t e r system s h o u l d be more c l o s e l y f o l l o w e d , i n o r d e r
to prevent duplication.
178. I t was proposed t o have paragraphs 4 and 5 r e f e r n o t o n l y t o s p e c i a l i z e d
agencies b u t a l s o t o " t h e organs o f t h e U n i t e d N a t i o n s o r t h e organs p l a c e d under
t h e i r a u s p i c e s " , and i t was observed t h a t t h e r e were organs w h i c h were a l r e a d y
s t u d y i n g such s u b j e c t s as s l a v e r y , f o r c e d l a b o u r , freedom o f i n f o r m a t i o n and
p e n a l and p e n i t e n t i a r y q u e s t i o n s , w h i c h might become permanent i n t h e f u t u r e .
I t was f e l t , however, t h a t t o make r e f e r e n c e t o i n d e t e r m i n a t e organs was
i n a d m i s s i b l e and p o s s i b l y dangerous f o r t h e f u t u r e o f t h e covenant.

44/ E/CN.4/SR.429-30, E/CN.4/L.334, E/2621

and GA ( i X ) , 3rd Com., 576th mtg., p a r a s . l 4 - l 6 .
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DOCUMENTATION

Organ and Article

session Records o f d i s c u s s i o n Other documents number
(II) E/CN.4/AC3/SR.8 and E/CN.4/SR.41 E/CN.4/56,Chapter I I ,
Article 3

CHR ( V I ) E/CN A/SR.195 ESC ( I X ) , s u p p l . 1 0 , 3

Annex I , p a r t I ,
Article 3

CHR ( V I I ) E/CN.4/SR.24l and 249 E/CN.4/637 a n d

ESC ( X I I I ) , s u p p l . 9 ,
para.66 and Annex I I

GA ( V I ) 3rd Com., 360th mtg., p a r a s . 58-9; Annexes, a . i . 29,

3 6 l s t , p a r a . 25; 362nd, p a r a . 6; A/C.3/565 and
363rd, p a r a s . 23, 28-9 and 4 l ; A/2112, p a r a . 36
364th, p a r a . 9; 365th, paras.6 and 9j
367th, p a r a . 5; 369th, p a r a s . 11
and 12; 370th, p a r a . 26; 371st,
paras. 9 and 22; 388th, p a r a . 4 l ;
389th, p a r a . 21; 390th, p a r a s . 8
and 21; 393rd, p a r a s . 31 and 43; and
396th, p a r a . 15

CHR ( V I I I ) E/CN.4/530/Add.l,
paras. 11-13 and 29,
and E/CNA/NGO/36

CHR ( I X ) E/CNA/SR.355 and 390 E/CN.4/L.229 and

ESC ( X V I ) , s u p p l . 8 ,
paras.2o6-7 and
Annex I I I , paras.27-8
and 179-80

CHR (X) , E/CN.4/SR.426-30 E/CN.4/L.315,L.332,

L.333 and L.334,
E/CN.4/694/Add.3 and
ESC ( X V I I I ) Suppl.7,
paras I7I-205

ESC ( X V I I I ) E/2621 49

GA ( I X ) 3rd Com., 562nd mtg., p a r a , 12; Annexes, a . i . 58, 49

564th, p a r a . 15, 565th, paras.29-30; A/C3/574 and
566th,tares.25 and 29;571st,para.53; A/28o8, p a r a . 32
572nd, para.l4;573rd,para.10;575th,
para.30 and 576th,paras.l4-l6
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ARTICLE 50

R e l a t i o n s between t h e U n i t e d N a t i o n s
and S p e c i a l i z e d Agencies

N o t h i n g i n t h i s Covenant s h a l l be i n t e r p r e t e d as
i m p a i r i n g t h e p r o v i s i o n s o f t h e Charter o f t h e United Nations
and o f t h e c o n s t i t u t i o n s o f t h e s p e c i a l i z e d a g e n c i e s , which
d e f i n e t h e r e s p e c t i v e r e s p o n s i b i l i t i e s o f t h e v a r i o u s organs
o f t h e U n i t e d N a t i o n s and o f t h e s p e c i a l i z e d agencies i n
r e g a r d t o t h e m a t t e r s d e a l t w i t h i n t h i s Covenant.

179. This a r t i c l e c o n t a i n s t h e same t e x t as t h a t o f A r t i c l e 25 o f t h e d r a f t

45/
covenant on economic, s o c i a l and c u l t u r a l r i g h t s ' a n d t h e views expressed
; on t h e
two p r o v i s i o n s were i n g e n e r a l s i m i l a r . One o p i n i o n was t h a t t h e a d o p t i o n o f
a r t i c l e 50 was made necessary b y t h a t o f a r t i c l e ^9
180. An amendment was proposed w h i c h w o u l d have added t h e f o l l o w i n g :
" S i m i l a r l y , i t s h a l l n o t be i n t e r p r e t e d i n such a way as t o i m p a i r
t h e p r o v i s i o n s o f t h e Convention on t h e P r e v e n t i o n and Punishment o f t h e
Crime o f Genocide."
181. I n s u p p o r t o f t h e proposed amendment i t was p o i n t e d o u t t h a t t h e Convention
on Genocide was o f r e l e v a n c e t o t h r e e p r o v i s i o n s o f t h e d r a f t covenant, namely,
A r t i c l e s 6, 7 and 26. I f i t was t h o u g h t necessary t o s t i p u l a t e t h a t n o t h i n g i n
t h e d r a f t covenant s h o u l d be i n t e r p r e t e d as i m p a i r i n g t h e p r o v i s i o n s o f t h e
C h a r t e r o f t h e U n i t e d N a t i o n s , t h e same p r o t e c t i o n s h o u l d be extended t o the
Convention, p a r t i c u l a r l y s i n c e t h e l a t t e r d i d n o t c o n t a i n any c l a u s e s i m i l a r t o
A r t i c l e 103 o f t h e C h a r t e r t o ensure t h a t i t s p r o v i s i o n s s h o u l d t a k e precedence
over t h o s e o f o t h e r i n t e r n a t i o n a l agreements. Furthermore, i narticle 21,
paragraph 3, o f t h e d r a f t covenant on c i v i l and p o l i t i c a l r i g h t s , t h e r e was a
s p e c i f i c p r o v i s i o n s a f e g u a r d i n g t h e I n t e r n a t i o n a l Labour Convention o f 19U8 on
Freedom o f A s s o c i a t i o n and P r o t e c t i o n o f t h e R i g h t t o Organize, and a r t i c l e 50
c o n t a i n e d a r e f e r e n c e t o t h e c o n s t i t u t i o n s o f t h e s p e c i a l i z e d agencies. The
Convention on Genocide possessed a t l e a s t as g r e a t a s i g n i f i c a n c e i n t h e f i e l d o f
human r i g h t s as those i n s t r u m e n t s and was e n t i t l e d t o t h e same p r o t e c t i o n i n t h e
Covenant.

k5/ See Chapter I X , p a r a . 33, below.

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182. A g a i n s t t h e proposed amendment, i t was argued t h a t t h e p r i m a r y purpose o f t h e

a r t i c l e was t o s a f e g u a r d n o t t h e C h a r t e r o r t h e c o n s t i t u t i o n s o f t h e s p e c i a l i z e d
agencies, h u t t h e d i s t r i b u t i o n o f r e s p o n s i b i l i t i e s between t h e U n i t e d N a t i o n s and
t h e s p e c i a l i z e d agencies. T h e r e f o r e , any m e n t i o n o f t h e Convention on Genocide
would be i r r e l e v a n t . I t would i n any case be i n a p p r o p r i a t e t o m e n t i o n t h e
Convention and y e t o m i t o t h e r r e l e v a n t i n t e r n a t i o n a l i n s t r u m e n t s , such as t h e
c o n v e n t i o n s on s l a v e r y , f o r c e d l a b o u r , t h e p o l i t i c a l r i g h t s o f women and t h e
status o f refugees. The c r i t e r i o n s h o u l d be t h e l e g a l r e l e v a n c e , n o t t h e
i m p o r t a n c e , o f t h e c o n v e n t i o n c i t e d , and, t h a t b e i n g so, c o n s i d e r a b l e r e s e a r c h
w o u l d be needed t o ensure a f u l l l i s t i n g o f a l l t h e e x i s t i n g c o n v e n t i o n s which
had a d i r e c t b e a r i n g on t h e r i g h t s e n u n i c a t e d i n t h e d r a f t covenant. Otherwise,
i t m i g h t be argued t h a t t h e y were n o t t o be e q u a l l y r e s p e c t e d . I t was added t h a t ,
a f t e r t h e covenant had come i n t o f o r c e , o t h e r r e l e v a n t i n s t r u m e n t s m i g h t be
e l a b o r a t e d , and no l i s t i n g o f c o v e n t i o n s c o u l d t h e r e f o r e be regarded as f i n a l .
A g a i n , i f t h e amendment were adopted, i t would be necessary t o add t o a r t i c l e 25
o f t h e d r a f t covenant on economic, s o c i a l and c u l t u r a l r i g h t s a c l a u s e listing
t h e numerous c o n v e n t i o n s w h i c h were r e l e v a n t t o t h e i m p l e m e n t a t i o n o f economic,
s o c i a l and c u l t u r a l r i g h t s . The r e f e r e n c e t o t h e I n t e r n a t i o n a l Labour
Convention i n A r t i c l e 21 o f t h e Covenant was j u s t i f i e d on t h e grounds t h a t t h e r e
was a d e f i n i t e p o s s i b i l i t y o f a d i s c r e p a n c y between t h e guarantees offered i n the
d r a f t covenant and t h o s e extended b y t h e Convention and t h a t i t had t h e r e f o r e been
necessary t o ensure t h a t t h e p r o v i s i o n s o f t h e f o r m e r were n o t used t o evade
o b l i g a t i o n s assumed under t h e l a t t e r . No such danger e x i s t e d w i t h r e g a r d t o t h e
Convention on Genocide, s i n c e i t was u n t h i n k a b l e t h a t any p r o v i s i o n o f t h e d r a f t
covenant would i m p a i r o r i n any way c o n f l i c t w i t h an i n s t r u m e n t w h i c h d e f i n e d
and p r o v i d e d f o r t h e punishment o f an i n t e r n a t i o n a l c r i m e . I t was a l s o p o i n t e d
out t h a t t h e Genocide Convention was s p e c i f i c a l l y mentioned i n A r t i c l e 6,.
paragraph 2 o f t h e d r a f t covenant and was a l s o p r o t e c t e d b y t h e more g e n e r a l
p r o v i s i o n s o f i t s A r t i c l e 5, paragraph 2.
183. The amendment was w i t h d r a w n b y i t s sponsors, i n v i e w o f t h e p o s s i b l e
u n f a v o u r a b l e p o l i t i c a l consequences o f a r e j e c t i o n o f t h e amendment o r i t s a d o p t i o n
by o n l y a s m a l l m a j o r i t y .
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DOCUMEWTATIO

Organ and Article

session Records o f d i s c u s s i o n Other documents number

CHR ( V I I I ) /.4-/655, Add.2 69

CHR ( X ) E/CN/SR.430-I E/CN.4/L.315 and L.6-7

and ESC ( X V I I I ) suppl.7,
p a r a s . 206-14 69
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CHAFTE.R V I I I

ECONOMIC, SOCIAL AND CULTURAL RIGHTS

( P a r t I I I , A r t i c l e s 6-l6, o f t h e D r a f t Covenant on
Economic, S o c i a l and C u l t u r a l R i g h t s )

T a b l e o f Contents

Paragraphs

Article 6 - R i g h t t o work 1-3

Article 7 - J u s t and f a v o u r a b l e c o n d i t i o n s o f work 4-11
Article 8 - Trade u n i o n r i g h t s 12-17
Article 9 - Social security 18-22
A r t i c l e 10 - R i g h t s r e l a t i n g t o motherhood and c h i l d h o o d and
t o m a r r i a g e and t h e f a m i l y 23-28
A r t i c l e 11 - R i g h t t o adequate f o o d , c l o t h i n g and h o u s i n g 29-31
A r t i c l e 12 - R i g h t t o an adequate s t a n d a r d o f l i v i n g 32
A r t i c l e 13 - R i g h t t o h e a l t h 33-35
A r t i c l e l4 - Right t o education 36-4-7
A r t i c l e 15 - P l a n f o r implementing compulsory p r i m a r y e d u c a t i o n 48-52
A r t i c l e l 6 - R i g h t s r e l a t i n g t o c u l t u r e and s c i e n c e 53-55
Right t o property 56
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ARTICLE 6

R i g h t t o Work

1. Work b e i n g a t t h e b a s i s o f a l l human endeavour, t h e S t a t e s

P a r t i e s t o t h e Covenant r e c o g n i z e t h e r i g h t t o work, t h a t i s t o
say, t h e fundamental r i g h t o f everyone t o t h e o p p o r t u n i t y , i f
he so d e s i r e s , t o g a i n h i s l i v i n g b y work w h i c h he f r e e l y
accepts.

2. The s t e p s t o be t a k e n b y a S t a t e P a r t y t o t h i s Covenant
t o achieve t h e f u l l r e a l i z a t i o n o f t h i s r i g h t s h a l l i n c l u d e
programmes, p o l i c i e s and t e c h n i q u e s t o achieve s t e a d y economic
development and f u l l and p r o d u c t i v e employment under c o n d i t i o n s
s a f e g u a r d i n g fundamental p o l i t i c a l and economic freedoms t o t h e
individual.

1. A r t i c l e 6 i s one o f those a r t i c l e s o f t h e covenant w h i c h c o n t a i n an e l a b o r a t i o n

o f t h e s t e p s t o be t a k e n b y S t a t e s p a r t i e s a d d i t i o n a l t o what i s s a i d i n a r t i c l e 2.
The w o r d i n g c o n t a i n e d i n paragraph 2 was p r e f e r r e d t o v a r i o u s proposed f o r m u l a s
a c c o r d i n g t o which S t a t e s p a r t i e s would "ensure" o r "guarantee" t h e r i g h t t o work
or would be r e q u i r e d t o adopt measures " t o implement c o n c r e t e l y " t h e enjoyment o f
the right.
2. From t h e presence i n t h e a r t i c l e o f p a r a g r a p h 2, phrased as i t i s , t h e r i g h t t o
work seemed t o i n c l u d e the r i g h t t o be p r o v i d e d w i t h work, i n a d d i t i o n t o t h e
r i g h t n o t t o be p r e v e n t e d f r o m w o r k i n g . On t h e o t h e r hand, t h e r i g h t i n q u e s t i o n
was d e f i n e d i n paragraph 1 i n such a way as n o t t o p e r m i t t h e i n t r o d u c t i o n o f
forced labour.
3. I t was proposed t h a t t h e r i g h t t o work be g u a r a n t e e d w i t h t h e o b j e c t o f
c r e a t i n g c o n d i t i o n s p r e c l u d i n g t h e t h r e a t o f d e a t h f r o m hunger o r inanition, but
i t was f e l t t h a t t h i s would r e p r e s e n t t o o l o w a s t a n d a r d i n r e s p e c t o f t h e r i g h t
to work.
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Page 301

DOCUMENTATION

Organ and Records o f Article

session discussion Other documents number
ESC ( V I I ) E/C.2/88
CHR ( V ) E/CN.SR.130 and 131 'E/CN.yig6/Rev.l, 285 and 313
and ESC ( I X ) , suppl.10,
annex I
ESC ( I X ) E/C.2/196
CHR ( V I ) E/CN.SR.184 E/CN.353/Add. 10, /1\/4,
paras.10-56 and Corra.1 and 2,
E/CN. 65, 436 and 470 and
ESC ( X I ) , s u p p l . 5 , annex III
ESC ( X I ) /AC.7/SR.151 E/C.2/259/Add.l
GA ( V ) 3rd Com., 289th mtg., Annexes, a . i . 6 3 , A/C.3/L.77/
para.32, 290th, para.59, R e v . l and L.96, A/1559,
291st, paras.8 and 53, paras.25 and 49 and A/1576
297th, p a r a . 5 4 , 298th, and C o r r . l
paras.51 and 64, and
299th, paras.33 and 55
and A/PV;317, paras.63
and 73
ESC ( X I I ) E/SR.438, para.60 E/L.137 and E/1880
CHR ( V I I ) E/CN. V A C . i y SR. 1, 2 and E/CN.4/AC14/2 and A d d . l ,
3 and E/CN.ySR.203, 204, E/CN.36Add.l, paras.6-
205, 2C6, 207, 209 and l 6 , E/CN.364/Add,3, paras.
216-I8 27-8, E/CN /529, Vara.26,
E/CN.537, 558/Rev.l,
539/Rev.l, 5^2, 543, 5 , 552,
562 and 571, 572, 57^-6,
E/CN.yNGO/20, 23 and 28 and
ESC ( X I I I ) , s u p p l . 9 , para.39
and Annex I , A r t . 2 0 (French
t e x t i n E/CN.4/635/Add.5,
a r t i c l e 20)
ESC ( X I I I ) E/2059/Add.8 and E/C.2/316 20
GA ( V I ) 3rd Com., 360th mtg., 20
paras.25-7, 366th, p a r a .
20 and 569th, para.6
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English
Page 302

DOCUMENTATION ( c o n t i n u e d )

Organ and Records o f Article

session discussion Other documents number
CHR ( V I I I ) E/CN.4/SR.268-9 and 275-9 E/CN.4/364/Rev.l, p a r a s . 11-61, 20
and 281 E/CN.4/650, paras.9, 11, 13 and
22-3, E/CN.4/660, p a r a . 4 8 ,
E/CN.4/L.45, 53 and R e v . l , 58
and R e v . l , 82, 90, 91, 92 and
93 and ESC ( X I V ) , suppl.4,
paras.110-11 and Annex I , A,
Art.6
CHR ( I X ) E/CN.4/673, para.7 6
CHR ( X ) E/CN.4/702, Nos. X I , X V I and 6
XVIII
ESC ( X V I I I ) E/C.2/SR.145 6
GA ( I X ) 3rd Com., 565th mtg., p a r a . 6
2 8 , 567th, para.13, 569th,
para.18, 571s*? paras.l6 and
32, 572nd, para.23 and
575th, p a r a . 2 8
 A/2929
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Page

ARTICLE 7

J u s t and Favourable C o n d i t i o n s o f Work

The S t a t e s P a r t i e s t o t h e Covenant r e c o g n i z e t h e r i g h t o f
everyone t o j u s t and f a v o u r a b l e c o n d i t i o n s o f work, I n c l u d i n g :

(a) Safe and h e a l t h y w o r k i n g c o n d i t i o n s ;

( b ) Remuneration which p r o v i d e s a l l workers as a minimum

with:

(i) F a i r wages and e q u a l r e m u n e r a t i o n f o r work o f

e q u a l v a l u e w i t h o u t d i s t i n c t i o n o f any k i n d , I n
p a r t i c u l a r , women b e i n g g u a r a n t e e d c o n d i t i o n s o f
work n o t i n f e r i o r t o those e n j o y e d b y men, w i t h
e q u a l pay f o r e q u a l work; and

(ii) A decent l i v i n g f o r themselves and t h e i r families;

and

( c ) Rest, l e i s u r e and reasonable l i m i t a t i o n o f w o r k i n g

hours and p e r i o d i c h o l i d a y s w i t h pay.

k. C o n s i d e r a t i o n o f t h i s a r t i c l e concerned p r i n c i p a l l y t h e q u e s t i o n o f
r e m u n e r a t i o n d e a l t w i t h i n paragraph ( b ) .
5. Regarding t h e t e r m "minimum" i n r e l a t i o n t o r e m u n e r a t i o n , i t was s t a t e d t h a t
w h i l e a minimum s t a n d a r d was b e i n g l a i d down - a p r o v i s i o n o f p a r t i c u l a r v a l u e t o
under-developed c o u n t r i e s - i t c o u l d n o t be t a k e n t o mean t h a t e f f o r t s f o r
improvement o f wage standards s h o u l d s t o p a t t h a t p o i n t .
6. Paragraph ( b ) would guarantee t o women t h e same pay as t o men f o r e q u a l
work. The i n c l u s i o n o f such a p r o v i s i o n was necessary, i t was u r g e d , because t h e
p r i n c i p l e o f e q u a l pay f o r e q u a l work f o r men and women workers was n o t observed
i n some c o u n t r i e s a t t h e p r e s e n t t i m e . On t h e o t h e r hand i t was argued t h a t t h e
p o s i t i o n o f women was safeguarded b y a guarantee o f minimum o r f a i r wages t o
"everyone" and b y t h e n o n - d i s c r i m i n a t i o n p r o v i s i o n c o n t a i n e d i n paragraph 2 o f
a r t i c l e 2; a s p e c i a l r e f e r e n c e t o t h e r i g h t s o f women here would weaken t h e
p r o t e c t i o n a f f o r d e d women elsewhere i n t h e covenant, where t h e i r r i g h t s were
i n t e n d e d t o be p r o t e c t e d b y the use o f "everyone" and b y paragraph 2 o f a r t i c l e 2.
The a r t i c l e moreover s h o u l d n o t p r e j u d i c e t h e r i g h t o f e q u a l r e m u n e r a t i o n i n cases
o t h e r t h a n those o f women.
/2929
English
Page -

7. A p r o p o s a l t h a t due allowance he made f o r f a m i l y r e s p o n s i b i l i t i e s i n a p p l y i n g

t h e p r i n c i p l e o f e q u a l p a y f o r e q u a l work f o r men and wcmen workers was d i s c u s s e d
b u t withdrawn.
8. Paragraph ( b ) ( i ) i s n o t l i m i t e d t o t h e q u e s t i o n o f e q u a l pay f o r e q u a l
work as between men and women workers. I t e x p r e s s l y excludes " d i s t i n c t i o n o f
any k i n d " ; r e f e r e n c e was made t o t h e r i g h t s o f people o f d i f f e r e n t races and
t o e q u a l i t y as between n a t i o n a l s and n o n - n a t i o n a l s .
9. I t was u r g e d t h a t workers s h o u l d have t h e r i g h t t o share i n i n c r e a s e d p r o f i t s
o f u n d e r t a k i n g s and t h a t t h e i r wages s h o u l d be f i x e d i n r e l a t i o n t o i n c r e a s e s i n
t h e c o s t o f l i v i n g , b u t i t was d e c i d e d n o t t o i n c o r p o r a t e these p r i n c i p l e s i n t h e
article.
10. The v i e w was p u t f o r w a r d t h a t t h e o b l i g a t i o n s o f S t a t e s i n r e s p e c t o f t h e
whole s u b j e c t m a t t e r o f t h e a r t i c l e s h o u l d be r e i n f o r c e d ; i t was f e l t , however,
t o be i m p r a c t i c a b l e t o supplement t h e terms o f t h e g e n e r a l a r t i c l e as a p p l i e d t o
this right. I n p a r t i c u l a r , t h e r e was some doubt as t o whether i t was p o s s i b l e
i m m e d i a t e l y t o implement t h e p r i n c i p l e o f e q u a l r e m u n e r a t i o n f o r e q u a l work f o r
men and women w o r k e r s .
11. I t was r e c o g n i z e d t h a t n o t o n l y l e g i s l a t i o n and governmental intervention,
but also collective agreements, p l a y e d an i m p o r t a n t p a r t i n t h e r e a l i z a t i o n o f t h e
r i g h t t o j u s t and f a v o u r a b l e c o n d i t i o n s o f work.
 /2929
English
Page 305

DOCMEITATION

Organ and Records o f Article

session discussion Other documents number

ESC ( I V ) E/C.2/32, para.2

ESC ( V I ) E/C.2/67
CHR (V) E/CN.SR.I30 and 131 E/CN.4/22l/Corr.l, 224 and C o r r . l ,
285 and 31 and ESC ( I X ) , s u p p l .
10, annex I
ESC ( I X ) E/C.2/196
CHR ( V I ) E/CN.SR.184 E/CN.4/353/Add.lO, E/CN.4/364,
paras.57-85 and 96-109 and
C o r r . l , E/CN.4/365, 403 and 436
and ESC ( X I ) , s u p p l . 5 , annex I I I
ESC ( X I ) E/AC.7/SR.151
GA (V) 3rd Com., 289th mtg., para. Annexes, a . I . 63, A/C.3/L.77/Rev.l
37, 291st, paras.19, 53,54 and L . 9 6 , A/1559, paras.29 and 49
and 81, 299th, p a r a . 33 and and /1576 and C o r r . l
313th, para.13 and A/PV.317,
paras.13, 63 and 73
ESC ( X I I ) /SR.438, para.60 and E/L.I37 and E/1880
/SR.439, para.48
CHR ( V I I ) E/CN.4/SR.203, 204, 206, E/CN.4/AC.l4/2/Add.2 and Add.3,
207, 208 and 218-20, 222 S e c t i o n V, E/CN.4/364/Add.1,
and 224 paras.I7-25 and 28-30, E/CN.4/364/
Add.3, paras.29-37 and 39-4o,
E/CN.4/529, para.26, E/CN.4/537,
538/Rev.l, 539/Rev.l, 542, 543,
547, 552, 562, 577/Rev.l and
578-8O, E/CN.4/NG0/20, 23, 25 and
28 and ESC ( X I I l ) , suppl.9,
para.4o and Annex I,Art.21 (French
t e x t i n E/CN.4/635/Add.5, a r t i c l e
50)
ESC (XIII) /2057/Add.2 and /2059/Adda.4 21
and 8
ESC ( X I V ) E/C.2/335 21
GA ( V I ) 3rd Com., 360th mtg., paras. 21
25-7, 366th, para.20 and
371st, p a r a . l
A/2929
English
Page

DOCUMENTATION ( c o n t i n u e d )

Organ and Record o f Article

session discussion Other documents number

CHR ( V I I I ) E/CN/SR.268-9, 277 and E/CN.4/364/Rev.l, paras.62-91

279-81
CHR ( I X )
CHR ( X )
GA ( I X ) 3rd Com., 563rd mtg.,
para.8, 565th, paras.20,
28 and 44, 566th, para.23,
569th, para.11, 570th,
para.3, 571st, paras.16 and
33, 572nd, para.24 and
575th, paras.15 and 31
and IO2-I5, E/CN.4/650, paras.
9, 11, 13 and 24-8, E/CN.4/66I,
E/CN.4/L.46, 59, 60, 62/Rev.l-2,
/Rev.l, 94 a n d ESC ( X I V ) ,
suppl.4, paras.112-115 and
n (
Annex I , A, A r t i c l e 7 a l
annex I V
E/CN.4/67, paras.8-12 7
E/CN.4/694/Add.2 and Add.6, 7
p a r a . l 4 , E/CN.4/702, Nos.XI,
X I I I , XVI and X V I I I and
E/CN.4/702/Add.5
 A/2929
English
Page 307

ARTICLE 8

Trade Union R i g h t s

The S t a t e s P a r t i e s t o t h e Covenant u n d e r t a k e t o ensure

t h e f r e e e x e r c i s e o f t h e r i g h t o f everyone t o f o r m and j o i n
l o c a l , n a t i o n a l and i n t e r n a t i o n a l t r a d e u n i o n s o f h i s choice
f o r t h e p r o t e c t i o n o f h i s economic and s o c i a l i n t e r e s t s .

12. There was some d i s c u s s i o n as t o whether t r a d e u n i o n r i g h t s s h o u l d he t r e a t e d

i n t h e p r e s e n t covenant o r i n t h a t on c i v i l and p o l i t i c a l r i g h t s : on t h e one hand,
i t was c l a i m e d t h a t t h e y were an a s p e c t o f t h e r i g h t o f a s s o c i a t i o n , which i s t h e
s u b j e c t o f a r t i c l e 21 o f t h e d r a f t covenant on c i v i l and p o l i t i c a l r i g h t s ; and,
on t h e o t h e r hand, t h e d i r e c t r e l e v a n c e o f a r t i c l e 8 t o economic and s o c i a l
m a t t e r s was p o i n t e d o u t .
13. The v i e w p r e v a i l e d t h a t i t was p o s s i b l e t o r e q u i r e S t a t e s p a r t i e s t o
"ensure" t h e f r e e e x e r c i s e o f t h e r i g h t t o f o r m and j o i n t r a d e u n i o n s , i t being
argued t h a t t h a t r i g h t c o u l d n o t be made s u b j e c t t o t h e " p r o g r e s s i v e " principle
enunciated i n a r t i c l e 2 s i n c e n o n - i n t e r f e r e n c e b y S t a t e s w i t h t r a d e unions was
alone needed t o g r a n t t h e r i g h t .
ik. S t r e s s was p l a c e d on t h e importance o f e n s u r i n g t h e " f r e e " e x e r c i s e o f t h e
r i g h t without State i n t e r f e r e n c e . I t was observed, however, t h a t t h e use o f t h e
words " o f h i s choice" m i g h t l i m i t t h e r i g h t s o f u n i o n s t o c o n t r o l t h e i r internal
o r g a n i z a t i o n , p a r t i c u l a r l y i n r e l a t i o n t o q u a l i f i c a t i o n f o r membership.
15. A number o f p r o v i s i o n s were proposed e l a b o r a t i n g t h e ways I n w h i c h t r a d e
u n i o n r i g h t s c o u l d be p r o t e c t e d b y t h e covenant; these were s u b j e c t e d t o some
c r i t i c i s m , on t h e grounds, among o t h e r s , t h a t t h e y f e l l w i t h i n t h e competence o f
t h e ILO and o v e r l a p p e d w i t h i t s work and t h a t some r e l a t e d t o t h e r i g h t s o f
unions r a t h e r t h a n t o those o f t h e i n d i v i d u a l . I n c l u d e d among t h e p r o p o s a l s
were p r o v i s i o n s r e l a t i n g t o t h e r i g h t t o s t r i k e , w h i c h was s a i d t o be v i t a l f o r
t h e p r o t e c t i o n o f t h e economic and s o c i a l r i g h t s o f workers. I t was p o i n t e d o u t
t h a t s t r i k i n g was o n l y one method among many whereby t r a d e unions c o u l d pursue
t h e i r i n t e r e s t s , s t r e s s b e i n g p l a c e d upon i t s c h a r a c t e r as a l a s t r e s o r t , t o be
used o n l y when t h e u s u a l c o n c i l i a t i o n procedures had f a i l e d t o secure a s o l u t i o n ;
and i t was u r g e d t h a t any p r o v i s i o n r e l a t i n g t o s t r i k i n g s h o u l d p e r m i t t h e
p o s s i b i l i t y o f i t s l i m i t a t i o n i n t h e case o f p u b l i c o r e s s e n t i a l s e r v i c e s .
A/2929
English
Pager 308

16. The q u e s t i o n o f t h e l i m i t a t i o n s o f t r a d e u n i o n r i g h t s was d i s c u s s e d . The

words " i n c o n f o r m i t y w i t h a r t i c l e 16" (now a r t i c l e 21 of the draft covenant
on c i v i l and p o l i t i c a l r i g h t s ) had appeared a f t e r t h e words " t h e r i g h t o f
everyone" i n a r t i c l e 8 a t an e a r l i e r s t a g e , and i t was u r g e d t h a t t h i s c r o s s
r e f e r e n c e s h o u l d he p r e s e r v e d , i n v i e w o f t h e v a l u a b l e d e f i n i t i o n o f t h e
l i m i t a t i o n o f t h e r i g h t o f a s s o c i a t i o n c o n t a i n e d i n paragraphs 2 and 3 o f
a r t i c l e 21. On t h e o t h e r hand, i t was argued t h a t i t was n o t a d v i s a b l e t o
make a r e f e r e n c e i n one covenant t o a p r o v i s i o n i n a n o t h e r and t h a t t h e p r e s e n t
covenant would i n any case c o n t a i n a g e n e r a l l i m i t a t i o n s a r t i c l e ( a r t i c l e h)
applicable t o the entire covenant.
17. A r t i c l e 8 was n o t i n t e n d e d t o govern t h e r i g h t s o f employers. I t was
s t a t e d t h a t independent p r o f e s s i o n a l workers s h o u l d be e n t i t l e d t o f o r m
p r o f e s s i o n a l o r g a n i z a t i o n s and t h a t t h e r i g h t s o f c o - o p e r a t i v e a s s o c i a t i o n s
would n o t be p r e j u d i c e d b y t h e i r n o t b e i n g mentioned i n t h e covenant.
 /2329
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Page 309

DOCUMENTATION

Organ and Article

session Records o f d i s c u s s i o n Other documents number

ESC ( I V ) E/c.2/32, p a r a . 2
CHR ( I I ) /.1+/.1/9
ESC ( V I ) E/.2/67
CHR (V) E/CW.I+/263 and 313 and
ESC ( I X ) , s u p p l . 1 0 ,
annex I
ESC ( I X ) E/. 2/196
CHR ( V I ) E/CN.l+/SR.l84 E/CN.l+/364,par as.86-95
and C o r r . l , E/CN.I+/365
and I+03 and ESC ( X I ) ,
S u p p l . 5 , annex I I I
ESC ( X I ) E/SR.376, paras.32-5,36,37?
38-1+1,1+2,1+3,1+1+ and 1+5
GA (V) 3rd Com.,290th mtg.,para.11, Annexes, a.i.63, /.5/
291st,paras.8,19 and 8 l , L.77/Rev.l and L . 9 6 ,
297th para.59,298th para.13, A/1559,para.1+9 and
299th para.33,3C6th p a r a 2 A/1576 and C o r r . l
and 312th p a r a . 4 l and
A/PV.3I7 paras .16 and 63
ESC ( X I I ) E/SR.1+38, para.61 E/L.137
CHR ( V I I ) E/CK.I+/AC.II+/SR.I and 2, E /N. 1+ / .ll+ /2/Add. 1+,
E/CW .4/SR .203,2Cl+, 2C6,207, s e c t i o n X, E/CW.I+/36I+/
208,218 and 221+-6 Add,1,paras.26-7, E / C N . U /
36U/Add.3,para.38,
//529,.2,
E/CW.l+/537,538/Rev.1,539/
Rev.1,547,552,591 and
Rev.l,59l+,595 and P e v . l
and 596, E/CN.1+/KG0.20,23,
25 and 28 and ESC ( X I I l ) ,
suppl.9,para.1+6 and
annex I , a r t . 2 7 (French
t e x t i n E/CN.l+/635/Add.5,
a r t i c l e 56) .
GA ( V I ) 3rd Com., 363rd m t g .
p a r a s . 1 5 - 1 6 , 366th,
para.20 and 371st
para.3 27
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English
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DOCUMENTATION

(continued)

Organ and Article

session Records o f d i s c u s s i o n Other documents number

CHR (VIII) E/CN.4/SR.268 and 298- E/CN.4/364/Rev.l,

paras.92-101, E/CN.4/
650,paras.10,13,34-5
and 58 ( F ) , E/CN.4/654/
Add.6, E/CN.4/655/Add.3,
E/CN.4/L. 50,50/Re v. 1,
78,110,111,118,119,162,
162/Rev.1,163, and
ESC ( X I V ) suppl.4,
paras,l40-l4l'and
Annex I , A , A r t i c l e 8 27
ESC ( X V I ) E / C . 2/365 8
CHR ( X ) E/CN.4/694/Add.2 and
E/CN.4/702, N o . X V I I I
and A d d . l , No.XXV 8
ESC (XVIII) E/C.2/410 8
GA ( I X ) 3 r d Corn., 565th m t g .
paras.20 and 33, 566th
para.11, 572nd para.24
and 575th paras.9 and 3 1 8
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ARTICLE 9

Social security

The S t a t e s P a r t i e s to the Covenant recognize the

r i g h t of everyone to s o c i a l s e c u r i t y .

18. During the d r a f t i n g of t h i s a r t i c l e , among others, the view was expressed

t h a t the covenant should include s h o r t general statements i n view of the f a c t
t h a t d e t a i l e d p r o v i s i o n s on the r i g h t s i n question had been, were being or should
be d r a f t e d by the s p e c i a l i z e d agencies concerned.
19. Much of the d i s c u s s i o n turned upon whether i t was d e s i r a b l e to elaborate
various aspects of s o c i a l s e c u r i t y . The question was, f o r i n s t a n c e , debated
whether " s o c i a l s e c u r i t y " was as wide i n scope as " s o c i a l w e l f a r e " and whether
i t included " s o c i a l insurance". Texts were proposed which would have s p e c i f i e d
c e r t a i n e v e n t u a l i t i e s i n which, i n p a r t i c u l a r , s o c i a l insurance should be
accorded. At an e a r l i e r stage the term " s o c i a l s e c u r i t y " had been i n t e r p r e t e d
broadly so as to include not only s o c i a l insurance but a l s o f a m i l y allowances and
other means of s o c i a l p r o t e c t i o n . ^ I t was s a i d t h a t to elaborate various
aspects of s o c i a l s e c u r i t y would have a l i m i t i n g e f f e c t .
20. I t was a l s o f e a r e d t h a t to elaborate e x h a u s t i v e l y upon the meaning of
" s o c i a l s e c u r i t y " might deny to S t a t e s the necessary freedom i n approaching the
problem of s o c i a l s e c u r i t y .
21. The present wording was p r e f e r r e d to another which would have spoken of the
r i g h t to s o c i a l s e c u r i t y not of everyone but more s p e c i f i c a l l y of workers and
s a l a r i e d employees.
22. The question of the cost of s o c i a l s e c u r i t y schemes was d i s c u s s e d and a
proposal was r e j e c t e d according to which the cost would have been borne by the
S t a t e or the employer, without c o n t r i b u t i o n by the person b e n e f i t e d .

1/ //SR. 220-1
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DOCUMENTATION

Organ and Article

session Records o f d i s c u s s i o n Other documents number

ESC ( I V ) E/C.2/32, p a r a . 2
CHR (v) E/CNA/SR.130 and 131 E/CN.4/245, 5 2 8 a n d
1 and
ESC ( I X ) , s u p p l . 10, annex I
CHR (VI) E/CN.4/SR.l84 E/CN.4/353/Add.lO, E/CN.4/364,
a n d
paras.132-87, E/CN.U/365 ^36
and ESC ( X I ) , suppl.5, annex I I I

ESC ( X I ) E/AC.7/SR.i5i

GA ( V ) 3 r d Com. 2 8 9 t h mtg. Annexes a . i . 63, A/C.3/L.77/Rev.l

para.32, 2 9 0 t h para.56, and L.96, A/1559, paras.25 and
2 9 1 s t , p a r a s . 8, 19 and 49 and A/1576 and C o r r . l
54, 2 9 8 t h para.13 and
299th p a r a s . l 8 and 33 and
A/PV.317, paras.63 and 73

ESC ( X I I ) E/SR.438, p a r a . 60 E/L.137 and E/1880

CHR ( V I I ) E/CN.4/AC.14/SR.1, 2 and E/CN.4/AC.l4/2/Add.3, s e c t i o n I V ,

3 and E/CN.4/SR.203, 204, E/CN.4/364/Add.l, p a r a s . 42-5,
206, 207, 218 and 220-1 E/CN.4/364/Add.3, para.26,
E/CN.4/529, para.26, E/CN.4/537,
538/Rev.l, 539/Rev.l, 542, 543, 552,
562 and 58I, E/CN.4/NG0.20, 23 and
28 and ESC ( X I I l ) , Suppl.9, p a r a . 4 l
and annex I , a r t i c l e 22 ( F r e n c h t e x t
i n E/CN.4/635/Add.5, a r t i c l e 51)

GA ( V I ) 3rd Com. 360th mtg.,

p a r a s . 25-7 and 366th
p a r a . 20 22

CHR (VIII) E/CN.4/SR.268-9, 281, E/CN.4/364/Rev.l, paras.l4l-97,

282 and 284 E/CN.4/65O, paras.11 and 13,
E/CN.4/654/Add.6, E/CN.4/L.47, 22
64, 64/Rev.l-2, 68, and ESC ( X I V )
Suppl.4, p a r a s . 117-118 and
Annex I,A, a r t i c l e 9
CHR (X) E/CN.4/702, N o . X V I I I and A d d . l ,
No. XXV 9
GA ( I X ) 3rd Com., 569th mtg.,
para.18, 572nd p a r a . 24
and 575th p a r a . 7 9
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ARTICLE 10

R i g h t s r e l a t i n g t o motherhood and
c h i l d h o o d and t o marriage and t h e
family

The S t a t e s P a r t i e s t o t h e Covenant r e c o g n i z e t h a t :

1. S p e c i a l p r o t e c t i o n s h o u l d be accorded t o motherhood
and p a r t i c u l a r l y t o m a t e r n i t y d u r i n g reasonable p e r i o d s b e f o r e
and a f t e r c h i l d b i r t h ; and

2. S p e c i a l measures o f p r o t e c t i o n , t o be a p p l i e d i n a l l
a p p r o p r i a t e cases w i t h i n and w i t h t h e h e l p o f t h e f a m i l y ,
s h o u l d be t a k e n on b e h a l f o f c h i l d r e n and young persons, and
i n p a r t i c u l a r t h e y s h o u l d n o t be r e q u i r e d t o do work l i k e l y t o
hamper t h e i r normal development. To p r o t e c t c h i l d r e n f r o m
e x p l o i t a t i o n , t h e u n l a w f u l use o f c h i l d l a b o u r and t h e
employment o f young persons i n work h a r m f u l t o h e a l t h or ,
dangerous t o l i f e s h o u l d be made l e g a l l y a c t i o n a b l e ; and

3. The f a m i l y , w h i c h i s t h e b a s i s o f s o c i e t y , i s e n t i t l e d
t o the widest possible p r o t e c t i o n . I t i s based on m a r r i a g e ,
w h i c h must be e n t e r e d i n t o w i t h t h e f r e e consent o f t h e
i n t e n d i n g spouses.

23. The a c c o r d i n g o f s p e c i a l p r o t e c t i o n t o "motherhood",, n o t e x c l u s i v e l y t o

" m a t e r n i t y " , was meant t o s i g n i f y t h a t p r o t e c t i o n s h o u l d extend over t h e whole
p e r i o d o f t h e mother's r e s p o n s i b i l i t y f o r t h e development o f t h e c h i l d d u r i n g
i t s early.years. There was some f e e l i n g t h a t t h e e x p r e s s i o n "motherhood" was too
vague and t h a t t h e g e n e r a l r i g h t s o f mothers were covered by a r t i c l e 9 on
social security.
2k. The p r o v i s i o n t h a t s p e c i a l measures o f p r o t e c t i o n t a k e n on b e h a l f o f
c h i l d r e n and young persons s h o u l d be a p p l i e d i n a l l a p p r o p r i a t e cases " w i t h i n
and w i t h t h e h e l p o f t h e f a m i l y " , gave r i s e t o some debate as t o t h e e x t e n t t o
w h i c h t h e S t a t e on t h e one hand and t h e f a m i l y on t h e o t h e r s h o u l d have
r e s p o n s i b i l i t y i n such m a t t e r s . The proposer o f t h e t e x t observed t h a t t h e
f a m i l y w o u l d c o n s t i t u t e t h e medium t h r o u g h w h i c h t h e proposed p r o t e c t i o n would
be g i v e n , t h e S t a t e b e i n g e x c l u s i v e l y r e s p o n s i b l e f o r p r o v i d i n g t h a t
A/2929
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protection.' On t h e o t h e r hand, a p r o p o s a l t o r e f e r t o s p e c i a l measures o f

p r o t e c t i o n t o he t a k e n "by t h e S t a t e s P a r t i e s t o t h e Covenant" was r e j e c t e d . '
3/

25. The p r o v i s i o n s o f t h e f i n a l sentence o f p a r a g r a p h 2 were s u p p o r t e d on t h e

grounds o f t h e p e r s i s t e n c e o f e x p l o i t a t i o n o f c h i l d l a b o u r ; i t was added t h a t
n o t a l l t y p e s o f u n l a w f u l use o f c h i l d l a b o u r were a t p r e s e n t n e c e s s a r i l y a l s o
penal offences. A t t e n t i o n was drawn, on t h e o t h e r hand, t o t h e d i f f i c u l t i e s
a r i s i n g f r o m t h e v a r y i n g i n t e r p r e t a t i o n s o f t h e word " c h i l d " i n d i f f e r e n t
c o u n t r i e s and t o t h e d i f f i c u l t y o f d e c i d i n g what t y p e s o f l a b o u r t o d e c l a r e
unlawful.
26. Measures on b e h a l f o f m a t e r n i t y and motherhood w h i c h , under one p r o p o s a l ,
w o u l d be o b l i g a t o r y on S t a t e s p a r t i e s , i n c l u d e d t h e g r a n t i n g t o g a i n f u l l y
employed women o f p a i d h o l i d a y s b e f o r e and a f t e r c o n f i n e m e n t , and s p e c i a l
S t a t e a s s i s t a n c e t o mothers o f l a r g e f a m i l i e s and t o u n m a r r i e d mothers. The
o p i n i o n was expressed on t h e o t h e r hand t h a t such measures were n e i t h e r t h e o n l y
nor t h e most e s s e n t i a l measures i n t h a t f i e l d ; t h a t they f e l l w i t h i n the
sphere o f s o c i a l s e c u r i t y w h i c h had been t r e a t e d i n a r t i c l e 9j and t h a t t h e
o b l i g a t i o n s o f S t a t e s under a r t i c l e 10 s h o u l d be those p r o v i d e d f o r i n a r t i c l e 2.
27. The o p i n i o n was expressed t h a t t h e c o n t e n t s o f p a r a g r a p h 3 were o u t o f p l a c e
i n t h e p r e s e n t a r t i c l e and t h a t t h e p r o v i s i o n s r e l a t i n g t o marriage s h o u l d be
i n c l u d e d i n t h e covenant on c i v i l and p o l i t i c a l rights.
28. I t was c l a i m e d t h a t u n l i k e paragraphs 2 and 3 o f A r t i c l e l6 o f t h e
U n i v e r s a l D e c l a r a t i o n o f Human R i g h t s , p a r a g r a p h 3 was open t o t h e
i n t e r p r e t a t i o n t h a t a f a m i l y n o t based upon marriage entered i n t o w i t h the free
consent o f t h e i n t e n d i n g spouses was n o t e n t i t l e d t o t h e same p r o t e c t i o n as a
f a m i l y based upon a marriage f r e e l y entered i n t o .

2/ E/CN A / S R . 297-
3/ E/CN /SR. 298.
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DOCUMENTATION

Organ and Article

session Records o f d i s c u s s i o n Other documents number

ESC (VI) E/C.2/67

CHR ( V I ) E/CN.ySR.184 E/CN.364, paras.188-222,

E/CN.4/365 and 436, E/CN.4/NG0/
9 and ESC ( X I ) , suppl.5,
annex I I I

GA ( V ) 3rd Com., 291st m t g . Annexes, a.i.63, /.3/534,

para.19 and 299th, para.33 para.6 ( k )

ESC ( X I I ) E/SR.439

CHR ( V I I ) E/CN.4/AC.14/SR.3, E/CN.4/AC.l4/2/Add.3, s e c t i o n V,

E/CN.ySR.205, 206, 218, E/CN.4/364/Add.l, paras.46-53,
222 and 224 E/CN.4/364/Add.3,- p a r a . 6 l ,
E/CN.4/529, para.26, E/CN.4/538/
R e v . l , 539/Rev.l, 582 and 585-8,
E/CN.4/NGO/l5,17,l8,29,30 and 33
and ESC ( X I I I ) , suppl.9, para.42
and annex I , a r t i c l e 26 (French
t e x t i n E/CN.4/635/Add.5, a r t i c l e
55)

GA ( V I ) 3rd Com., 360th mtg., paras . Annexes, a . i . 29, A/C.3/566 26

25-7, 363rd, para.33 and
366th, para.20

CHR (VIII) E/CN.SR.268 and 296-8 E/CN.4/364/Rev.l, paras.198-235, 26

E/CN.4/650, paras.11,13,33 and 48,
E/CN.4/655/Add.3, E/CN.4/660,paras.
13-14, E/CN.4/L.49 and C o r r . l
( E n g l i s h only),74,74/Rev.1-2,77,
77/Rev.1,87,112,113,II6,117,and
ESC ( X I V ) Suppl.4,paras.135-139 and
Annex I , A, A r t i c l e 10

CHR (IX) E/CN.4/673, paras.13-15 and 10

E/CN.4/NG0.43
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EOCUMENTATIOK ( c o n t i n u e d )
Organ and Article
Other documents number
session Records o f d i s c u s s i o n
E/CN /702,No s . V I I , I X , X I , X I I I , 10
CHR ( X ) XVI and XVIII,Add.2, No.XXIX
and Add. 4

1 0
GA ( I X ) 3rd Com.,562nd mtg.para.7,
563rd para.9,569th para.17,
571st para.34,572nd p a r a s .
12 and 25-6, 575th p a r a . l 6
and 576th para.30

ARTICLE 11

R i g h t t o adequate f o o d , c l o t h i n g and h o u s i n g

The S t a t e s P a r t i e s t o t h e Covenant r e c o g n i z e t h e
r i g h t o f everyone t o adequate f o o d , c l o t h i n g and h o u s i n g .

29. While t h e r e l a t i o n s h i p between f o o d , c l o t h i n g and h o u s i n g and t h e adequate

s t a n d a r d o f l i v i n g r e f e r r e d t o i n a r t i c l e 12 was r e c o g n i z e d , these t h r e e elements
were c o n s i d e r e d o f s u f f i c i e n t importance t o w a r r a n t t h e i r s p e c i f i c m e n t i o n i n a
separate article.
30. O p p o s i t i o n t o a separate a r t i c l e on adequate h o u s i n g ( e x p r e s s e d b e f o r e
r e f e r e n c e t o f o o d and c l o t h i n g h a d been added) was based on t h e grounds t h a t t o
make s p e c i a l p r o v i s i o n f o r h o u s i n g would t h r o w doubt on t h e scope o f a r t i c l e 12
and t h a t h o u s i n g was d e a l t w i t h a l r e a d y a l s o i n a r t i c l e 13.
31. The a d o p t i o n was u r g e d o f a t e x t whereby S t a t e s p a r t i e s would undertake a l l
necessary measures, p a r t l y by l e g i s l a t i o n , t o ensure t o everyone a d w e l l i n g
c o n s i s t e n t w i t h human d i g n i t y , on t h e grounds t h a t a r t i c l e 2 was i n s u f f i c i e n t t o
cover t h e needs o f t h e s i t u a t i o n . I t was p o i n t e d o u t t h a t " a i l necessary
measures" d i d n o t i m p l y o n l y t h e b u i l d i n g o f houses, b u t such measures as
s u b s i d i e s , t a x exemptions, l o a n s and t h e p r o v i s i o n o f m a t e r i a l s on f a v o u r a b l e
terms. I t was m a i n t a i n e d , on t h e o t h e r hand, t h a t such a t e x t would r u l e o u t
i n i t i a t i v e on t h e p a r t o f community and p r i v a t e e n t e r p r i s e , t h a t the obligations
o f a r t i c l e 2 were a l l t h a t c o u l d be r e a s o n a b l y i n s i s t e d upon i n t h i s connexion
and t h a t S t a t e s s h o u l d n o t be compelled, t o g i v e p r i o r i t y t o h o u s i n g i n t h e i r
o v e r - a l l implementation o f the covenant.
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DOCUMENTATION

Organ and Article

session Records o f d i s c u s s i o n Other documents number
ESC ( V I ) E/C.2/67

CHR ( v ) E/CN.4/246 and 3 1 and ESC ( I X ) ,

Suppl.10, annex I

CHR ( V I ) E/CN.4/364,paras.110-120,E/CN.4/
365 and ESC ( X I ) , Suppl.5, annex III

ESC ( X I ) E/SR.439

GA ( V ) 3rd Com.,291st mtg.,para.54 Annexes a . i . 63, /./.77/

and 299th para.18 and A/PV. R e v . l and L . 9 6 and A/1576 and
317, para.63 Corr.l

ESC ( X I I ) E/SR.438, para.60 and E/SR. E/L.137

439, p a r a s . 35-41

CHR ( V I I ) E/CN.SR.203,204,218 E/CN.4/AC.l4/2/Add.3,section V I ,

and 222-3 E/CN.4/364/Add.l,paras.31-8,
E/CN.4/364/Add.3,para.48, E/CN.4/
529,para.26,E/CN.4/537,552 and 582,
E/CN.4/NG0/28 and ESC ( X I I I ) ,
S u p p l . 9 , p a r a . 4 3 and annex I ,
a r t i c l e 23 (French t e x t i n E/CN.4/
635/Add.5,art.52)

GA ( V I ) 3rd Com.,360th m t g . p a r a s . 2 5 - 7 ,
363rd paras.15-16, 366th para.: 0 ,
369th p a r a . 6 and 371s* p a r a . l

CHR ( V I I I ) E/CN.4/SR.269 and 294-5 E/CN.4/364/Rev.l,paras.li-29, 23

E/CN.4/65O,paras.10,11,13 and 52-3,
E/CN.4/654/Add.6 and 655/Add.3,
E/CN.4/L.48,57,83 and E S C ( x i v )
Suppl.4,paras.29-I3O and Annex 1 ,
A, a r t i c l e 11

CHR ( I X ) E/CN.4/67, para.16 11

GA (VIII) 3rd Com., 509th mtg.,para.21 11

CHR ( X ) E/CN.4/694/Add.6,para.l4 and

E/CN.4/702, Nos. V I and X V I I I 11

GA ( I X ) 3rd Com.,569th mtg.,para.18,

570th p a r a . 3 and 571st.
para.35 11
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ARTICLE 12

R i g h t t o an adequate s t a n d a r d o f l i v i n g

The S t a t e s P a r t i e s t o t h e Covenant r e c o g n i z e t h e
r i g h t o f everyone t o an adequate s t a n d a r d o f l i v i n g and
t h e c o n t i n u o u s improvement o f l i v i n g c o n d i t i o n s .

32. A r t i c l e 12 c o n t a i n s no d e f i n i t i o n o f an adequate s t a n d a r d o f l i v i n g ; i t
was t h o u g h t t h a t any a t t e m p t a t such d e f i n i t i o n w o u l d be r e s t r i c t i v e i n i t s
effect. The words "and t h e c o n t i n u o u s improvement o f l i v i n g c o n d i t i o n s " were
added i n o r d e r t o ensure t h e r e c o g n i t i o n o f t h e p r i n c i p l e o f c o n t i n u o u s p r o g r e
i n t h i s sphere.
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DOCUMENTATION

Organ and Article

session Records o f d i s c u s s i o n Other documents number

ESC ( V I ) E/C.2/67

CHR ( V I ) ESC ( X I ) , Suppl.5, annex I I I

CHR ( V I I ) E/CN.4/SR.204, 218 and E/CN.yAC.lV2/Add.3,section V I I ,

222-3 E/CN.4/364/Add.3,paras.kl-7, E/CN.k/
539/Rev.l and 543 and ESC ( X I I l )
suppl.9,para.kk and annex I , a r t i c l e 24
( F r e n c h t e x t i n E/CN.4/635/Add.5,
art.53)

ESC (XIII) E/2057/Add.2 and E/2059/Add.8 24

GA ( V I ) 3rd Com.,360th m t g . 24
paras.25-7, 366th p a r a .
20 and 371st p a r a . l

CHR (VIII) E/CN.U/SR.295 E/CN.4/650 paras.11,13 and 29-30 and 24

ESC ( X I V ) Suppl.k, para.131 and
Annex I , A, A r t i c l e 12

CHR ( I X ) E/CN.4/67, p a r a . l 6 12

GA ( V I I I ) 3rd Com., 5C9'th m t g . 12

para.21

CHR ( X ) E/CN.4/694/Add.6,para.l4 and 12

E/CN.4/702, No.VI

ESC ( X V I I I ). E/C.2/410 12

GA ( I X ) 3rd Com.,569th m t g .
para.7, 570th para.3 and 12
571st, para.35
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ARTICLE 13

Right t o h e a l t h

1. The S t a t e s P a r t i e s t o t h e Covenant, r e a l i z i n g t h a t
h e a l t h i s a s t a t e o f complete p h y s i c a l , m e n t a l and s o c i a l
w e l l - b e i n g , and n o t m e r e l y t h e absence o f disease o r
i n f i r m i t y , r e c o g n i z e t h e r i g h t o f everyone t o t h e enjoyment
of t h e highest a t t a i n a b l e standard o f h e a l t h .

2. The steps t o be t a k e n by t h e S t a t e s P a r t i e s t o t h e
Covenant t o achieve t h e f u l l r e a l i z a t i o n o f t h i s r i g h t s h a l l
i n c l u d e those necessary f o r :

(a) The r e d u c t i o n o f i n f a n t m o r t a l i t y and t h e

p r o v i s i o n f o r h e a l t h y development o f t h e c h i l d ;

(b) The improvement o f n u t r i t i o n , h o u s i n g ,

s a n i t a t i o n , r e c r e a t i o n , economic and w o r k i n g
c o n d i t i o n s and o t h e r aspects o f e n v i r o n m e n t a l
hygiene ;

(c) The p r e v e n t i o n , t r e a t m e n t and c o n t r o l o f

e p i d e m i c , endemic and o t h e r d i s e a s e s ;

(d) The c r e a t i o n o f c o n d i t i o n s which would

assure t o a l l m e d i c a l s e r v i c e and m e d i c a l
a t t e n t i o n i n t h e event o f s i c k n e s s .

33 I n t h e d r a f t i n g o f t h i s t e x t , which i s more d e t a i l e d t h a n t h e p r e c e d i n g
a r t i c l e s , c o n s i d e r a t i o n was g i v e n t o t h e a t t i t u d e o f t h e World H e a l t h O r g a n i z a t i o n ,
which f a v o u r e d t h e i n c l u s i o n i n t h e a r t i c l e o f a c e r t a i n degree o f d e t a i l .
3^. The d e f i n i t i o n o f h e a l t h c o n t a i n e d i n p a r a g r a p h 1 was d e r i v e d from t h e
C o n s t i t u t i o n o f t h e World H e a l t h O r g a n i z a t i o n . I t s introduction into the t e x t
was opposed on t h e grounds t h a t such d e f i n i t i o n s were u n u s u a l i n t h e a r t i c l e s o f
the covenant and t h a t t h e r e f e r e n c e t o " s o c i a l w e l l - b e i n g " was o u t o f p l a c e i n t h e
present a r t i c l e . I t was defended on t h e grounds b o t h o f i t s o r i g i n and o f i t s
i n t r i n s i c w o r t h as r e p r e s e n t i n g a new and v a l u a b l e i d e a .
35 The i n t r o d u c t o r y clause "The steps t o be t a k e n b y t h e S t a t e s P a r t i e s t o t h e
Covenant t o achieve t h e f u l l r e a l i z a t i o n o f t h i s r i g h t s h a l l i n c l u d e t h o s e necessary
for" was i n t e n d e d t o make t h e a r t i c l e s u b j e c t t o a r t i c l e 2, i t b e i n g argued that
the i n c l u s i o n o f separate statements o f o b l i g a t i o n s i n t h e a r t i c l e s d e a l i n g w i t h
s p e c i f i c r i g h t s was unnecessary and would weaken a r t i c l e 2 and so t h e e n t i r e
covenant. The o p i n i o n was expressed, on t h e o t h e r hand, t h a t t h e w o r d i n g just
 /292-9
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quoted was weaker t h a n t h e u n d e r t a k i n g c o n t a i n e d i n a n o t h e r p r o p o s a l , a c c o r d i n g

t o which t h e statement o f p r o v i s i o n s t o be t a k e n b y S t a t e s would have been
introduced by the f o l l o w i n g : "With a v i e w t o i p i p l e m e n t a t i n g and s a f e g u a r d i n g this
r i g h t each S t a t e P a r t y h e r e t o undertakes t o p r o v i d e l e g i s l a t i v e measures t o
promote and p r o t e c t h e a l t h and, i n p a r t i c u l a r : " .

DOCUMENTATION
Organ and Article
session Records o f d i s c u s s i o n Other documents number
CHR ( V I ) E/CN.4/364,paras. 121-31 and Corr.3

GA ( V ) 3rd Com.,298th mtg.,

para.64 and 299th,
para.33

ESC ( X I I ) E/l880/Add.2

CHR ( V I I ) E/CN.4/AC.14/SR.1, E/CN.VAC.l4/2/Add.4,section V I I I ,

E/CN.4-/SR. 203,204, E/CN.4/364/Add.l,paras.39-4l,E/CN.4/
207,209,222 and 223 34-/Add.3,paras.-9-,E/CN.-/529,
para.26, E/CN.4/539/Rev.l, 542, 543,
544 and Add.l,547,562,583 and 589 and
ESC ( X I I l ) , suppl.9,para.45 and Annex I ,
a r t . 2 5 (French t e x t i n E/CN.4/635/
Add.5, a r t i c l e 54)

ESC ( X I I I ) E/SR.523,para.31 E/C.2/323 25

GA ( V I ) 3rd Com.,363rd mtg.,paras. 25

I 5 - I 6 and 33 and 366th
para.20

CHR ( V I I I ) E/CN.4/SR.268 and 295-6 E/CN.4/364/Rev.l,paras,130-4O,E/CN.4/650, 25

paras.10,12,13 and 31-2, E/CN.4/660,
para.49, E/CN.4/L.79, 79/Rev.l,84,86,
109, and ESC ( X I V ) , S u p p l . 4,paras.132-
134 and Annex I , A, A r t i c l e 13

CHR ( I X ) E/CN.4/673, para.17 13

GA ( V I I I ) 3rd Com.,509th mtg.para.21 13
CHR ( X ) E/CN,4/694/Add.2 and Add.6,para.14 and 13
E/CN.4/702,No.XVIII and Add.4
GA ( I X ) 3rd Com.565th mtg.,para.28, 13
566th,para.11, 567th para.10
570th, para.3, 571st para.16,
572nd,paras.13 and 26, 575th
para.6 and 576th para.30
A/2929
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ARTICLE 14

Right t o education

1. The S t a t e s P a r t i e s t o the.Covenant r e c o g n i z e t h e r i g h t o f
everyone t o e d u c a t i o n , and r e c o g n i z e t h a t e d u c a t i o n s h a l l
encourage t h e f u l l development o f t h e human p e r s o n a l i t y , t h e
s t r e n g t h e n i n g o f r e s p e c t f o r human r i g h t s and fundamental
freedoms and t h e s u p p r e s s i o n o f a l l i n c i t e m e n t t o r a c i a l and
other hatred. I t s h a l l promote u n d e r s t a n d i n g , t o l e r a n c e and
f r i e n d s h i p among a l l n a t i o n s , r a c i a l , e t h n i c o r r e l i g i o u s
groups, and s h a l l f u r t h e r t h e a c t i v i t i e s o f t h e U n i t e d N a t i o n s
f o r t h e maintenance o f peace and enable a l l persons t o
participate e f f e c t i v e l y i n a free society.

2. I t i s understood:

( a ) That p r i m a r y e d u c a t i o n s h a l l be compulsory and

available free t o a l l ;

( b ) That secondary e d u c a t i o n , i n i t s d i f f e r e n t forms,

i n c l u d i n g t e c h n i c a l and p r o f e s s i o n a l secondary e d u c a t i o n ,
s h a l l be g e n e r a l l y a v a i l a b l e and s h a l l be made p r o g r e s s i v e l y
free ;
( c ) That h i g h e r e d u c a t i o n s h a l l be e q u a l l y a c c e s s i b l e t o
a l l on t h e b a s i s o f m e r i t and s h a l l be made p r o g r e s s i v e l y
free;
( d ) That fundamental e d u c a t i o n f o r those persons who have
n o t r e c e i v e d o r completed t h e whole p e r i o d o f t h e i r
p r i m a r y e d u c a t i o n s h a l l be encouraged as f a r as p o s s i b l e .

3. I n t h e e x e r c i s e o f any f u n c t i o n s w h i c h t h e y assume i n t h e
f i e l d o f e d u c a t i o n , t h e S t a t e s P a r t i e s t o t h e Covenant undertake
t o have r e s p e c t f o r t h e l i b e r t y o f p a r e n t s and, when a p p l i c a b l e ,
l e g a l g u a r d i a n s , t o choose f o r t h e i r c h i l d r e n schools o t h e r
t h a n those e s t a b l i s h e d b y t h e p u b l i c a u t h o r i t i e s which conform
t o such minimum e d u c a t i o n a l standards as may be l a i d down o r
;
approved b y t h e S t a t e and t o ensure t h e r e l i g i o u s e d u c a t i o n o f
t h e i r c h i l d r e n i n c o n f o r m i t y w i t h t h e i r own c o n v i c t i o n s .

36. The r e l a t i v e l y d e t a i l e d n a t u r e o f t h i s a r t i c l e , and o f a r t i c l e s l 4 - l 6 on

e d u c a t i o n a l and c u l t u r a l r i g h t s t a k e n t o g e t h e r , i s t h e r e s u l t p a r t l y o f t h e f a c t
t h a t UNESCO f a v o u r e d a r t i c l e s on those r i g h t s c o n t a i n i n g a degree o f d e t a i l .
37 Some doubt was expressed as t o t h e d e s i r a b i l i t y o f i n c l u d i n g t h e d e f i n i t i o n
o f t h e aims o f e d u c a t i o n which appears i n paragraph 1. I t was argued t h a t t h a t
 A/2929
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d e f i n i t i o n confused elements w h i c h were n o t a l l o f e q u a l importance and t h a t no

s i m i l a r d e f i n i t i o n appeared i n o t h e r a r t i c l e s . I t was f e l t , however, t h a t , i n
t h e l i g h t o f t h e w i d e l y d i f f e r i n g ends t o w h i c h e d u c a t i o n c o u l d be used, i t was
i m p o r t a n t t o s t a t e what those ends ought t o be. There was some o p p o s i t i o n t o t h e
r e f e r e n c e t o s u p r e s s i o n o f i n c i t e m e n t t o r a c i a l and o t h e r h a t r e d , i t b e i n g f e l t I n
p a r t i c u l a r t h a t i t was unnecessary i n t h e l i g h t o f t h e w o r d i n g o f t h e more p o s i t i v e
statement that followed. A n x i e t y was expressed c o n c e r n i n g t h e r e f e r e n c e t o r a c i a l
groups, i t b e i n g c l a i m e d t h a t t h e word " r a c i a l " was d e v o i d o f s c i e n t i f i c b a s i s and
t h a t i t s use m i g h t p e r p e t u a t e o r appear t o g i v e a p p r o v a l t o u n d e s i r a b l e attitudes.
38. Some doubt was v o i c e d as t o t h e l e g a l s i g n i f i c a n c e o f t h e words " i t i s
understood" i n p a r a g r a p h 2.
39- I t was r e c o g n i z e d t h a t t h e meanings o f some o f t h e terms used i n p a r a g r a p h 2,
and o f p r i m a r y and secondary e d u c a t i o n i n p a r t i c u l a r , d i f f e r e d f r o m c o u n t r y t o
country.
kO. P r o v i s i o n s were proposed a c c o r d i n g t o w h i c h "the S t a t e must e n s u r e " t h e
r i g h t s t o p r i m a r y , secondary and h i g h e r e d u c a t i o n , i n p a r t i c u l a r b y p r o v i d i n g t h e
necessary systems o f s c h o o l s , s c h o l a r s h i p s and h i g h e r e d u c a t i o n a l i n s t i t u t i o n s .
I t was s t r e s s e d t h a t t h e o b l i g a t i o n o f S t a t e s t o c r e a t e a l l t h e c o n d i t i o n s
necessary t o enable e v e r y person, w i t h o u t any d i s c r i m i n a t i o n whatever, t o a c q u i r e
an e d u c a t i o n was p a r t i c u l a r l y i m p o r t a n t inasmuch as more t h a n h a l f o f t h e
p o p u l a t i o n o f t h e w o r l d was i l l i t e r a t e . The p r o v i s i o n s i n q u e s t i o n were s u b j e c t e d
to c r i t i c i s m on t h e grounds t h a t t h e methods n e e d i n g t o be a p p l i e d were n o t t h e
same f o r a l l S t a t e s , w h i c h s h o u l d n o t t h e r e f o r e be bound i n t h e i r p o l i c i e s , and
because t h e f u l l r e a l i z a t i o n o f t h e r i g h t t o e d u c a t i o n d i d n o t depend s o l e l y upon
State a c t i o n .
kl. The i n t e n t i o n o f t h e w o r d i n g o f p a r a g r a p h 2 ( a ) was t h a t , w h i l e p r i m a r y
e d u c a t i o n was t o be compulsory, a p a r e n t need n o t n e c e s s a r i l y make use o f t h e f r e e
State-provided facilities.
k2. A p r o p o s a l t o add r e f e r e n c e i n p a r a g r a p h 2 (b ) t o a r t i s t i c secondary e d u c a t i o n
was n o t adopted, i t b e i n g f e l t t h a t t e c h n i c a l and p r o f e s s i o n a l e d u c a t i o n i n c l u d e d
a r t i s t i c education. There was some d i s c u s s i o n o f t h e p r e c i s i o n o f t h e words
A/2929
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" g e n e r a l l y a v a i l a b l e " i n t h e E n g l i s h t e x t , one i n t e r p r e t a t i o n b e i n g t h a t t h e

S t a t e must, a c c o r d i n g t o paragraph 2 ( b ) , p r o v i d e a l l t h e schools r e q u i r e d f o r
secondary e d u c a t i o n .
43. I t v a s f e l t t h a t s e p a r a t e r e f e r e n c e need n o t be made i n paragraph 2 to
p h y s i c a l e d u c a t i o n , s i n c e t h i s w o u l d be u n d e r s t o o d as b e i n g i n c l u d e d i n t h e
g e n e r a l concept o f e d u c a t i o n .
44. A p r o v i s i o n was e l i m i n a t e d f r o m t h e a r t i c l e p r o h i b i t i n g d i s c r i m i n a t i o n i n
e d u c a t i o n a l m a t t e r s a f t e r t h e argument had been h e a r d t h a t t o i n c l u d e such a
p r o v i s i o n was unnecessary i n t h e l i g h t o f paragraph 2 o f a r t i c l e 2. The
r e t e n t i o n o f t h e p r o v i s i o n had been urged on t h e grounds t h a t t h e r e were s p e c i a l
reasons f o r p r o v i d i n g a g a i n s t d i s c r i m i n a t i o n i n t h e p r e s e n t c o n t e x t i n view o f
the prevalence o f d i s c r i m i n a t i o n and s e g r e g a t i o n i n t h e p r o v i s i o n o f e d u c a t i o n a l
facilities.
45. I t was f e l t i m p o s s i b l e t o p r o v i d e t h a t p a r e n t s s h o u l d be g i v e n t h e r i g h t t o
determine t h e c u r r i c u l u m o f t h e i r c h i l d r e n ' s e d u c a t i o n , and paragraph 3 of
a r t i c l e l 4 r e p r e s e n t s what was f e l t t o be t h e most r e a l i s t i c and e q u i t a b l e way
of e x p r e s s i n g t h e c o n t e n t o f a r t i c l e 26, paragraph 3, o f t h e U n i v e r s a l D e c l a r a t i o n
of Human R i g h t s , a c c o r d i n g t o w h i c h "parents have a p r i o r r i g h t t o choose t h e k i n d
of e d u c a t i o n t h a t s h a l l be g i v e n t o t h e i r children."
46. Paragraph 3 speaks o f " p u b l i c a u t h o r i t i e s " because s c h o o l s o r t y p e s o f
schools a r e o f t e n t h e r e s p o n s i b i l i t y o f l o c a l a u t h o r i t i e s and n o t o f t h e S t a t e .
47. There was some d i s c u s s i o n o f t h e p o s s i b i l i t y o f making r e f e r e n c e t o
p h i l o s o p h i c a l as w e l l as r e l i g i o u s e d u c a t i o n i n t h e f i n a l w o r d i n g o f t h e
paragraph. One o b s e r v a t i o n made was t h a t complete freedom i n t h i s r e s p e c t might
r e s u l t i n t e a c h i n g c o n t r a r y t o t h e aims s e t o u t i n paragraph 1.
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DOCUMENTATION

Organ and Article

cession Records o f d i s c u s s i o n Other documents number

ESC ( V I I ) E/C.2/88

CHR ( V ) E/CN.SR.131 E/CN. 4/21+7, 285, 304 and 313 and

ESC ( l X ) , s u p p l . 10, annex I

CHR ( V I ) E/CN.ySR.l84 E/CN.y353/Add.lO, E/CN.4/364,

p a r a s . 223-93, E/CN.365,
and 477, E/CN.yNG0/l2 and
ESC ( X I ) , s u p p l . 5, annex I I I

ESC ( X I ) E/C.2/SR.79 E/1752 and C o r r . l and E/c.2/259

and A d d . l

GA ( V ) 3rd Com., 290th mtg., Annexes, a . i . 63, A/C.3/L.77/

p a r a . 18, 291st, paras.19, R e v . l and L.96 and A/1576 and
54 and 59, 297th, p a r a s . Corr.l
65-6, 298th, paras. 25
and 64, 299th p a r a s . 18
and 25 and 312th, p a r a , kl
and /TV.317, p a r a s . 63
and 73

ESC ( X I I ) E/SR.438, p a r a . 60 and E/L.137 and E/188O

E/SR.U39, p a r a . 1+8

CHR ( V I I ) E / C N . y A C . i y S R . l , 2 and E/CN.4/AC.l4/2/Add.4, s e c t i o n I X ,

3, E/CN.ySR.203, 20l+,
205, 206, 208, 209 and
226-30
E/CN.y361+, A d d . l , p a r a s . 54-79,
E/CN.y36yAdd.2 and Add-3,
p a r a s . 62-7I+, E/CN.529,
p a r a . 26, E/CN.537, 538/Rev.l,
539/Rev.l, 541/Rev.l, 5^2, 5 ,
5I+7, 552, 593 and R e v . l and 2,
598, 6OI-2, 605, o i l and 613/
R e v . l , E/CN.yNGO/20, 2 1 , 23, 25,
28, 29 and 30 and ESC ( X I I l )
Suppl. 9, p a r a . 1+7 and Annex I ,
a r t i c l e 28 (French t e x t i n
/CN.y635/Add.5, a r t i c l e 57)

ESC ( X I I I ) E/C.2/SR.106 E/2059/Add.8 and E/C.2/316 28

A/2929
English
Page 32

DOCLMENTATIOW
(cont'd)

Organ and Article

session Records o f d i s c u s s i o n Other documents number

GA ( V I ) 3rd Com., 360th mtg., Annexes, a . i . 29, A/C.3/566 and 28

paras. 25-7, 363rd A/2112, para. 39
paras. 15-16, 366th
para. 20 and 367th

CHR ( V I I I ) E/CN. SR. 285-91 E/CN.V36VRev.l, p a r a s . 236- 28

315, E/CN.65O, p a r a s . 10, 11,
13 and 36-9, E/CN.655/Add.4,
660, p a r a . 16, and 667,
E/CN. yNGo/36, E/cN.yL.51,
51/Corr.l ( E n g l i s h o n l y ) , 6 l ,
6 l / R e v . l , 80, 80/Rev.l-2, 85,
85/Rev.l, 89, 95, 96, 96/Rev.l,
97, 98, 99, 100, 101, 102,
102/Rev.l and ESC ( X I V ) ,
s u p p l . p a r a s . 119-123 and
Annex I , A, A r t i c l e Ik

CHR ( I X ) E/CN.673, p a r a s . 18-19 lk

GA ( V I I I ) 3rd Com., 509th mtg., Ik

para. 21

CHR (X) E/CN. 69Add. 1 and E/CHA/ Ik

702, No. X I and X I I I and Add.2,
No. XXIX

GA ( I X ) 3rd Com., 565th mtg., Ik

paras. 28 and kk, 567th,
para. 10, 568th,
para. 15, 569th,
para. 17, 571st, para. 16,
572nd, paras. 13 and 27,
575th, p a r a s . 6 and 31
and 576th, paras. 30 and
31
 /2929
English.
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ARTICLE 15

P l a n f o r implementing compulsory p r i m a r y e d u c a t i o n

Each S t a t e P a r t y t o t h e Covenant w h i c h , a t t h e t i m e o f
becoming a p a r t y t o t h i s Covenant, has n o t been a b l e t o secure
i n i t s m e t r o p o l i t a n t e r r i t o r y o r o t h e r t e r r i t o r i e s under i t s
j u r i s d i c t i o n compulsory p r i m a r y e d u c a t i o n , f r e e o f charge,
u n d e r t a k e s , w i t h i n two y e a r s , t o work o u t and adopt a d e t a i l e d
p l a n o f a c t i o n f o r the progressive implementation, w i t h i n a
r e a s o n a b l e number o f y e a r s , t o be f i x e d i n t h e p l a n , o f t h e
p r i n c i p l e o f compulsory p r i m a r y e d u c a t i o n f r e e o f charge f o r
all.

48. A r t i c l e 15 was c r i t i c i z e d f r o m v a r i o u s , and sometimes opposing, p o i n t s o f

view.
49. On t h e one hand, i t was s a i d t h a t t h e a r t i c l e w o u l d enable governments t o
postpone i n d e f i n i t e l y t h e i n t r o d u c t i o n o f f r e e compulsory p r i m a r y e d u c a t i o n f o r
all.
50. On t h e o t h e r hand, i t was argued t h a t t h e a r t i c l e a c c e n t u a t e d t h e l a c k o f
balance e x i s t i n g between t h e d r a f t i n g o f t h e p r o v i s i o n s on e d u c a t i o n a l r i g h t s and
t h e d r a f t i n g o f t h e a r t i c l e s on economic and s o c i a l r i g h t s , which m i g h t have t h e
e f f e c t o f d e t r a c t i n g f r o m t h e importance of planning i n f i e l d s r e l a t i n g t o the
latter. I t was a l s o m a i n t a i n e d t h a t t h e a r t i c l e p r o v i d e d i n r e a J - i t y f o r a
s p e c i a l measure o f i m p l e m e n t a t i o n on t h e n a t i o n a l l e v e l f o r one aspect o f one
r i g h t , whereas such i m p l e m e n t a t i o n s h o u l d be t h e s u b j e c t - m a t t e r o f a r t i c l e 2
exclusively. The a r t i c l e s b e i n g d r a f t e d s h o u l d m e r e l y s e t o u t g e n e r a l o b j e c t i v e s
w h i c h S t a t e s s h o u l d seek t o a t t a i n . Many S t a t e s w o u l d f i n d d i f f i c u l t y i n
s p e c i f y i n g t h e number o f years w i t h i n w h i c h f r e e and compulsory p r i m a r y e d u c a t i o n
c o u l d be p r o v i d e d , and i t w o u l d be i m p o s s i b l e t o b i n d S t a t e s t o implement p l a n s
w i t h i n t h e t i m e l i m i t s p e c i f i e d b y them. The m a t t e r was s a i d , f u r t h e r m o r e , t o
be f o r UNESCO t o d e a l w i t h .
51. I n s u p p o r t o f t h e a r t i c l e , i t was argued t h a t e d u c a t i o n , p a r t i c u l a r l y p r i m a r y
e d u c a t i o n , s h o u l d n o t be made s u b j e c t o n l y t o a g e n e r a l o b l i g a t i o n t o t a k e steps
t o achieve p r o g r e s s i v e development. On t h e o t h e r hand, t h e a r t i c l e d i d n o t l a y
down any u n r e a l i s t i c o b l i g a t i o n s . I t was added t h a t UNESCO i t s e l f f a v o u r e d t h e
adoption o f the a r t i c l e .
 12.92.9
English
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52. There i s no evidence t h a t t h e e x p r e s s i o n , used i n a r t i c l e 15, "compulsory

p r i m a r y e d u c a t i o n f r e e o f charge f o r a l l , " was i n t e n d e d t o mean something
d i f f e r e n t from the "primary education compulsory and a v a i l a b l e f r e e t o a l l "
of paragraph 2 ( a ) o f a r t i c l e l 4 .

DOCUMENTATION

Organ and Article

session Records o f d i s c u s s i o n Other documents number

CHR ( V I ) E/CN.4/477

ESC ( X I ) E/1752 and C o r r . l

CHR ( V I I ) E/CN.4/AC.I4/SR.1, 2 and E/CN.4/AC.l4/2/Add.4, s e c t i o n X,

3, and E/CN.4-/SR.203,
20h, 205, 206 and 226-30
E/CN.4/54l/Rev.l, 542, 5^7 and
613/Rev.l and ESC ( X I I I ) ,
s u p p l . 9, p a r a . 47 and annex I ,
a r t i c l e 29 (French t e x t i n E/CN.4/
635/Add.5, a r t i c l e 58)

ESC (XIII) E/C.2/SR.106 E/2059/Add.4 and E/C.2/316 29

GA ( V I ) 3rd Com., 366th mtg., Annexes, a . i . 29, A/2112, 29

para. 20 and 367th para. 39

CHR (VIII) E/CN.ySR.291, 292 and E/CN.ty650, p a r a s . 13 and 4o, 29

295 E/CN.4/655/Add.4, E/CN.4/667,
E/CN.4/L.88, and ESC ( X I V )
Suppl. 4, p a r a s . 124-5 and
Annex I , A, A r t i c l e 15

CHR (X) E/CN.4/694/Add.2 15

GA (IX) 3rd Com., 562nd mtg., 15

p a r a . 7, 563rd, para. 10,
571st, p a r a . 36 and
575th, p a r a . 31
 A/2929
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ARTICLE l 6

R i g h t s r e l a t i n g t o c u l t u r e and science

1. The S t a t e s P a r t i e s t o t h e Covenant r e c o g n i z e t h e r i g h t o f
everyone :

(a) To t a k e p a r t i n c u l t u r a l l i f e ;

( b ) To e n j o y t h e b e n e f i t s o f s c i e n t i f i c p r o g r e s s and i t s
applications.

2. The s t e p s t o be t a k e n b y t h e S t a t e s P a r t i e s t o t h i s Covenant
t o achieve t h e f u l l r e a l i z a t i o n o f t h i s r i g h t s h a l l i n c l u d e
those necessary f o r t h e c o n s e r v a t i o n , t h e development and t h e
d i f f u s i o n o f science and c u l t u r e .

3. The S t a t e s P a r t i e s t o t h e Covenant undertake t o r e s p e c t

t h e freedom i n d i s p e n s a b l e f o r s c i e n t i f i c r e s e a r c h and c r e a t i v e
activity.

53. The view was expressed t h a t a p r o v i s i o n s h o u l d be added t o a r t i c l e 16 t o t h e

e f f e c t t h a t S t a t e s s h o u l d undertake t o ensure t h e development o f science and
c u l t u r e i n t h e i n t e r e s t s o f p r o g r e s s and democracy and o f e n s u r i n g peace and
c o - o p e r a t i o n among n a t i o n s . I n support o f the p r o v i s i o n the d e s i r a b i l i t y o f
placing a binding o b l i g a t i o n on S t a t e s was s t r e s s e d , p a r t i c u l a r l y i n t h e l i g h t o f
t h e development o f d e s t r u c t i v e weapons. O p p o s i t i o n was, however, expressed t o
i n c l u d i n g a statement o f t h e ends w h i c h s c i e n t i f i c r e s e a r c h s h o u l d s e r v e , on t h e
grounds t h a t s c i e n t i f i c r e s e a r c h b y i t s n a t u r e was independent o f any e x t e r n a l
c r i t e r i o n and t h a t a statement o f aims such as t h a t envisaged m i g h t p r o v i d e a
p r e t e x t f o r S t a t e c o n t r o l o f s c i e n t i f i c r e s e a r c h and c r e a t i v e activity.
54. A proposal f o r the a d d i t i o n o f a provision f o r the p r o t e c t i o n o f r i g h t s
d e r i v i n g f r o m s c i e n t i f i c , l i t e r a r y o r a r t i s t i c p r o d u c t i o n s was opposed on t h e
grounds t h a t t h e m a t t e r c o u l d n o t a d e q u a t e l y be t r e a t e d i n a s h o r t p r o v i s i o n , that
i t was p r o p e r l y b e i n g d e a l t w i t h b y UNESCO, and more a d e q u a t e l y , and t h a t a u t h o r s '
r i g h t s had t o be c o n s i d e r e d i n t h e l i g h t o f t h e c l a i m s o f t h e community and o f t h e
world a t large.
55. The a d o p t i o n o f paragraph 3 was proposed on t h e grounds t h a t i t c o n t a i n e d an
e s s e n t i a l element n o t covered b y t h e p r e v i o u s p r o v i s i o n s o f the a r t i c l e .
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DOCUMENTATION

Organ and Article

session Records o f d i s c u s s i o n Other documents number

CHR ( V ) E/CN.4/248 and 31 and ESC ( I X ) ,

s u p p l . 10, annex I

CHR ( V I ) E/CN.U/LSU- E/CN.4/364, p a r a s . 223-64 and

294-9 and C o r r . l , E/CN.4/365 and
477 and ESC ( X I ) , Suppl. 5,
annex I I I

ESC ( X I ) E/1752 and C o r r . l

GA ( V ) 3rd Com., 289th mtg., Annexes a . i . 63, A/C.3/L.77/

p a r a . 32 and 299th, R e v . l and L.96 and A/1576 and
paras. 33 and 55 Corr.1

ESC ( X I I ) E/SR.438, p a r a . 60 E/L.I37 and E/1880

CHR ( V I I ) E/CN. VAC.lVSR.l, 2 a n d E/CN. V A C . l V A d d . 4 , s e c t i o n I X ,

3 and E/CN. .SR. 203, 204, E/CN.k/36k/kd.l, p a r a s . 54-77
205, 206, 209 and 226- and 80-4, E/CN.^/Add.2,
E/CN.U/529, p a r a . 26, E/CN.V537,
539/Rev.l, 5^1/Rev.l, 5^2, 5^3,
5^7, 552 and 613/Rev.l,
E/CN.4/NGO/23 a n d 28 and ESC
( X I I I ) , s u p p l . 9, p a r a . 47 and
annex I , a r t i c l e 30 (French t e x t
i n E/CN.V635/Add.5, a r t i c l e 59)

GA ( V I ) 3rd Com., 360th mtg., Annexes, a . i . 29, A/C.3/566 and 30

p a r a s . 25-7, 366th, A/2112, p a r a . 39
p a r a . 20, 367th and
371st, para. 4

CHR ( V I I I ) E/CN.ySR.269 and 292-4 E/CN.V36VRev.l, p a r a s . 236-78 30

and 316-22, E/CN.650, p a r a s .
11, 13 and 4 1 , E/CN.V65VAdd.6,
E/CN.V655/Add.4, E/CN.U/L.52, 75,
81, 8 l / R e v . l , 104, 105, 105/Rev.l,
IO6, 106/Rev.l, 107, 108 and
ESC ( X I V ) , S u p p l . 4, p a r a s . 126-
128 and Annex I , A, A r t i c l e 16

CHR ( I X ) E/CN.U/673, p a r a . 20 16
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DOCUMENTATION
(cont'd)

Organ and Article

session Records o f d i s c u s s i o n Other documents number

CHR ( X ) E/CN.k/69h/Add.6, p a r a . Ik and 16

E/CN.4/702, No. X V I , A d d . l *
No. X X V I I and Add.5

GA ( I X ) 3rd Com., 565th mtg., 16

p a r a s . 20 and 32, 566th,
p a r a s . l 6 and 22, 570th,
p a r a . 3, 572nd, p a r a . 16
and 575th p a r a s . 10 a n d
31
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RIGHT OF PROPERTY

56. P r o p o s a l s were made f o r an a r t i c l e on t h e r i g h t o f p r o p e r t y t o he i n c l u d e d

e i t h e r i n t h e covenant on economic, s o c i a l and c u l t u r a l r i g h t s or i n t h e
covenant on c i v i l and p o l i t i c a l r i g h t s or i n b o t h covenants. No t e x t o f such
an a r t i c l e was adopted. F o r a d i s c u s s i o n o f t h e p r o p o s a l s , see paragraphs 195 -
212 o f Chapter V I .
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CHAPTER I X

MEASURES OF IMPLEMENTATION:
ECONOMIC, SOCIAL AND CULTURAL RIGHTS

( P a r t I V , A r t i c l e s 17-25, o f the D r a f t Covenant on

Economic, S o c i a l and C u l t u r a l R i g h t s )

T a b l e o f Contents

Paragraphs

A r t i c l e 17 - R e p o r t i n g o b l i g a t i o n 1-10
The extent o f the o b l i g a t i o n t o report
The destination o f reports

A r t i c l e 18 - T i m i n g and c o n t e n t s o f r e p o r t s 11 - 14
The programme o f r e p o r t i n g
I n d i c a t i o n o f f a c t o r s and d i f f i c u l t i e s a f f e c t i n g t h e
degree o f f u l f i l m e n t o f o b l i g a t i o n s
Reference t o i n f o r m a t i o n p r e v i o u s l y f u r n i s h e d t o t h e
U n i t e d N a t i o n s o r t o a s p e c i a l i z e d agency

A r t i c l e 19 - Arrangements w i t h s p e c i a l i z e d agencies 15 - 17

A r t i c l e 20 - F u n c t i o n o f t h e Commission on Human R i g h t s 18-21

Reference t o t h e Commission on Human R i g h t s
P o s s i b l e a c t i o n b y t h e Commission

A r t i c l e 21 - Submission o f comments c o n c e r n i n g g e n e r a l
recommendations o f t h e Commission on Human
Rights 22

A r t i c l e 22 - R e p o r t i n g b y t h e Economic and S o c i a l C o u n c i l t o

t h e General Assembly 25 - 24

A r t i c l e 25 - T e c h n i c a l a s s i s t a n c e 25-26

A r t i c l e 24 - Types o f i n t e r n a t i o n a l a c t i o n 27 - 52

A r t i c l e 25 - R e l a t i o n s between t h e U n i t e d N a t i o n s and
s p e c i a l i z e d agencies 33-34
Publication of reports 35 - 37
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T a b l e o f Contents (continued)

Paragraphs

The a p p l i c a b i l i t y o f t h e human r i g h t s committee p r o c e d u r e

( P a r t I V o f t h e d r a f t covenant on c i v i l and p o l i t i c a l
r i g h t s ) t o t h e d r a f t covenant on economic, s o c i a l and
cultural rights 38-45
P e t i t i o n s p r o c e d u r e c o n c e r n i n g economic, s o c i a l and c u l t u r a l
rights 46 - 48
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PART I V CF THE DRAFT COVENANT

ON ECONOMIC SOCIAL AND CULTURAL RIGHTS

ARTICLE 17

Reporting Obligation

1. The S t a t e s P a r t i e s t o t h i s Covenant u n d e r t a k e t o
submit i n c o n f o r m i t y w i t h t h i s p a r t o f t h e Covenant
r e p o r t s c o n c e r n i n g t h e p r o g r e s s made i n a c h i e v i n g t h e
observance o f t h e r i g h t s r e c o g n i z e d h e r e i n .

2. ( a ) A l l r e p o r t s s h a l l be submitted t o t h e
Secretary-General o f t h e United Nations f o r
t h e Economic and S o c i a l C o u n c i l ;

( b ) Any S t a t e P a r t y w h i c h i s a l s o a member
o f a s p e c i a l i z e d agency s h a l l a t t h e same
time t r a n s m i t , i n respect o f matters f a l l i n g
w i t h i n t h e p u r v i e w o f t h a t agency, a copy o f
i t s r e p o r t , or relevant e x t r a c t s therefrom,
as a p p r o p r i a t e , t o t h a t agency.

1. A r t i c l e 17 c o n t a i n s t h e k e r n e l o f t h e r e p o r t i n g p r o c e d u r e o f t h e d r a f t
covenant on economic, s o c i a l and c u l t u r a l rights.

The e x t e n t o f t h e o b l i g a t i o n t o r e p o r t ^

2. I t was proposed t h a t t h e a r t i c l e should p r o v i d e f o r an o b l i g a t i o n t o

submit r e p o r t s i n c o n f o r m i t y n o t o n l y w i t h p a r t I V o f t h e d r a f t covenant b u t
a l s o w i t h " t h e recommendations which t h e General Assembly and t h e Economic
and S o c i a l C o u n c i l , i n t h e e x e r c i s e o f t h e i r g e n e r a l r e s p o n s i b i l i t y , may make
t o a l l t h e Members o f t h e U n i t e d Nations."

1/ E/CN.VAC.I5/SR.2, E/CN.VAC.15/R.1,
E/CN.4/SR.24l, 243, 246 and 420-3,
E/CN.4/L.325, E/CN.4/530/Add.l, p a r a . 29,
E/CN.4/623, 625 and 629 and
E/2059/Add.2, p a r a . 4.
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. I n support o f t h e p r o p o s a l , i t was p o i n t e d out t h a t t h e General Assembly

and t h e Economic and S o c i a l C o u n c i l were e n t r u s t e d b y t h e U n i t e d N a t i o n s
C h a r t e r w i t h a c o n t i n u i n g r e s p o n s i b i l i t y i n r e l a t i o n t o human r i g h t s , and t h a t
t h e C o u n c i l m i g h t make arrangements w i t h Member S t a t e s t o o b t a i n r e p o r t s on t h e
steps t a k e n t o g i v e e f f e c t t o i t s own recommendations and recommendations o f t h e
General Assembly. Furthermore, s i n c e t h e C o u n c i l , as w e l l as t h e Assembly,
would c o n s i d e r r e p o r t s s u b m i t t e d by S t a t e s p a r t i e s t o t h e covenant and might
make recommendations t o them, i t was e s s e n t i a l t h a t such S t a t e s should accept
t h e recommendations and undertake t o r e p o r t i n c o n f o r m i t y w i t h such
recommendations. Again, i t was t o be assumed t h a t a l a r g e number o f Member
S t a t e s o f t h e U n i t e d N a t i o n s would r a t i f y t h e covenant and t h e y would e x e r c i s e
a c o n s i d e r a b l e i n f l u e n c e i n t h e General Assembly when i t adopted r e l e v a n t
recommendations.

k. Cn t h e o t h e r hand, i t was s a i d t h a t t h e words proposed d i d n o t l a y down a

p r e c i s e o b l i g a t i o n , b u t r e q u i r e d S t a t e s p a r t i e s t o submit themselves t o u n d e f i n e d
f u t u r e d e c i s i o n s and recommendations o f t h e General Assembly and of t h e C o u n c i l .
I f t h e words i n q u e s t i o n were i n t e n d e d t o m i n i m i z e t h e d i f f e r e n c e between t h e
p o s i t i o n o f S t a t e s p a r t i e s and t h a t o f n o n - p a r t i e s , t h e y had n o t achieved that
o b j e c t because t h e y would c r e a t e an o b l i g a t i o n o n l y f o r t h e S t a t e s p a r t i e s .
The o m i s s i o n o f t h e words would n o t d e p r i v e t h e recommendations o f t h e General
Assembly and o f t h e C o u n c i l o f t h e i r e x i s t i n g f o r c e , b u t would ensure t h a t
t h e y would have t h e same f o r c e f o r b o t h p a r t i e s and n o n - p a r t i e s t o t h e covenant.
2/
5- As i s observed i n t h e t r e a t m e n t o f a r t i c l e 2 above," w h i l e most o f t h e
a r t i c l e s o f p a r t I I I o f t h e covenant r e c o g n i z e r i g h t s and w h i l e a r t i c l e 2,
paragraph 1, o f t h e covenant p l a c e s an o b l i g a t i o n on S t a t e s p a r t i e s i n r e l a t i o n
t o t h e r i g h t s so r e c o g n i z e d separate and a d d i t i o n a l o b l i g a t i o n s a r e l a i d down
i n seme a r t i c l e s o f p a r t I I I , namely i n a r t i c l e 8, a r t i c l e lk } paragraph 3,
a r t i c l e 15, and a r t i c l e 16, paragraph 3- Furthermore, a r t i c l e 2, paragraph 2,
c o n t a i n s a separate u n d e r t a k i n g t h a t t h e r i g h t s e n u n c i a t e d i n t h e covenant
s h a l l be e x e r c i s e d w i t h o u t d i s t i n c t i o n o f any k i n d . While t h e r e l a t i o n s h i p
between a r t i c l e 17 and a r t i c l e 2, paragraph 1, i s c l e a r , i t may be t h a t a more

See Chapter V.
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clear d e f i n i t i o n s h o u l d he g i v e n t o t h e r e l a t i o n s h i p between a r t i c l e 17 and t h e

o b l i g a t i o n s l a i d down i n a r t i c l e 2, p a r a g r a p h 2, a r t i c l e 8, a r t i c l e 14,
p a r a g r a p h 3, a r t i c l e 15, and a r t i c l e 16, p a r a g r a p h 3-

3/
The d e s t i n a t i o n o f r e p o r t s
6. Since many o f t h e r i g h t s w h i c h were t h e s u b j e c t m a t t e r o f t h e d r a f t
covenant were a l s o w i t h i n t h e j u r i s d i c t i o n o f one o r more s p e c i a l i z e d agencies,
and s i n c e some were a l r e a d y t h e s u b j e c t o f r e p o r t i n g o b l i g a t i o n s b i n d i n g upon
seme S t a t e s w h i c h c o u l d become p a r t i e s t o t h e Covenant, t h e r e was d i s c u s s i o n o f
the q u e s t i o n o f t h e d e s t i n a t i o n o f t h e r e p o r t s r e q u i r e d by p a r a g r a p h 1 o f t h e
article. Paragraph 2 r e p r e s e n t s a compromise between v a r i o u s p o i n t s o f view.
7- On t h e one hand i t was proposed t h a t any S t a t e p a r t y w h i c h i s a l s o a
member o f a s p e c i a l i z e d agency s h o u l d , i n r e s p e c t o f any p r o v i s i o n o f t h i s
covenant f a l l i n g w i t h i n t h e competence o f t h a t agency, submit i t s r e p o r t t o t h a t
agency, and t h a t a l l o t h e r r e p o r t s s h o u l d b e s u b m i t t e d t o t h e S e c r e t a r y - G e n e r a l
o f t h e U n i t e d N a t i o n s f o r t h e Economic and S o c i a l C o u n c i l .
8. T h i s proposed p r o c e d u r e , i t was argued, would ensure t h a t w i t h i n t h e f i e l d s
o f a c t i v i t i e s o f t h e s p e c i a l i z e d agencies r e p o r t s f u r n i s h e d b y t h e i r members
would go t o t h o s e agencies, w h i l e two t y p e s o f r e p o r t s would be s u b m i t t e d t o t h e
S e c r e t a r y - G e n e r a l o f t h e U n i t e d N a t i o n s f o r t h e Economic and S o c i a l C o u n c i l :
r e p o r t s d e a l i n g w i t h m a t t e r s n o t w i t h i n t h e comptence o f any s p e c i a l i z e d
agency and r e p o r t s o f S t a t e s n o t members o f t h e competent s p e c i a l i z e d agency.
I t was observed t h a t t h e covenant on economic, s o c i a l and c u l t u r a l r i g h t s had
been d r a f t e d so as t o c o n t a i n , i n t h e main, g e n e r a l statements o f o b l i g a t i o n s ,

3/ E/CN.4/AC.14/SR.1, 2 and 3, E/CN.4/AC.l4/2/Add.5, E/CN.4/AC.15/SR.2,

E/CNA/AC.15/R.1, E/CN.4/SR.203, 205, 206, 207, 218, 237-8, 241-3,
246-7 and 420-3, E/CN.4/L.325, L.326 and R e v . l , L.327 and L.329,
E/CN.4/530/Add.l, p a r a s . 30-3, E/CN.4/529, p a r a s . 5^-5, 539/Rev.l,
542, 543, 544/Add.l, E/CN.4/622, 625, 629, 631/Rev.2, 654/Add.2 and
655/Add.4, E/CN.4/659, ESC ( X I I l ) , 523 mtg., p a r a . 17, E/2048/Add.l,
p a r a . 7 and Annex I I I , E/2057/Add.l, 2 and 4 and GA ( V l ) , 3rd Com.,
360th mtg., p a r a . 58, 36lst mtg., p a r a . 47, 362nd mtg., p a r a . 6, 363rd
mtg., p a r a . 4 l , 367th mtg., p a r a s . 33-4 and 371st mtg., p a r a . 10,
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on t h e u n d e r s t a n d i n g t h a t i t would, i n g e n e r a l , he f o r t h e competent s p e c i a l i z e d
agencies t o e l a b o r a t e t h e d e t a i l e d o b l i g a t i o n s r e q u i r e d f o r t h e r e a l i z a t i o n o f
the rights. The p r o p o s a l would save work f o r n a t i o n a l . a u t h o r i t i e s which would be
r e s p o n s i b l e f o r r e p o r t i n g , and would o b v i a t e d u p l i c a t i o n o f f u n c t i o n s as between
the U n i t e d N a t i o n s and t h e s p e c i a l i z e d agencies as w e l l as t h e e s t a b l i s h m e n t o f
unnecessary new machinery.
9 On t h e o t h e r hand, t h e r e were p r o p o s a l s a c c o r d i n g t o which a l x r e p o r t s would
be s u b m i t t e d t o t h e S e c r e t a r y - G e n e r a l o f t h e U n i t e d N a t i o n s f o r t h e Economic and
S o c i a l C o u n c i l and r e l e v a n t r e p o r t s o r e x t r a c t s t h e r e f r o m would be f o r w a r d e d t o
the s p e c i a l i z e d agencies concerned e i t h e r b y t h e C o u n c i l o r b y t h e S e c r e t a r y -
General. The f e e l i n g was expressed t h a t t h e g e n e r a l r e s p o n s i b i l i t i e s o f t h e
U n i t e d N a t i o n s i n r e s p e c t o f human r i g h t s were c l e a r l y l a i d down i n t h e C h a r t e r
o f t h e U n i t e d N a t i o n s and t h a t any i m p r e s s i o n o f d e r o g a t i n g from them o r
d e l e g a t i n g some o f them should be a v o i d e d .
10. I t was p o i n t e d o u t t h a t , under t h e system o f p e r i o d i c r e p o r t s , Member S t a t e s
which acceded t o t h e covenant would be o b l i g e d t o r e p o r t t h e i r a c t i o n s over a
wide f i e l d t o t h e U n i t e d N a t i o n s , which would i n c l u d e S t a t e s t h a t had n o t
r a t i f i e d t h e covenant. S t a t e s P a r t i e s would have t o j u s t i f y t h e i r a c t i o n s
b e f o r e o t h e r S t a t e s and s u f f e r t h e i r c r i t i c i s m . The e s t a b l i s h m e n t o f such a
d i s p a r i t y would n o t encourage accessions t o t h e Covenant.
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DOCUMENTATION

Organ and Article

session Records o f d i s c u s s i o n
Other documents number
CHR (VII) E / C N . 4 / A C 1 4 / S R . I , 2 and 3
E/CN A/AC 14/1 and 2/Add.5, A
E/CNA/AC.I5/SR.2, E/CN /
E/CN.4/AC.15/R.1, E/CN.4/529,
SR.203, 205, 206, 207,
p a r a s . 54-5, 539/Rev.l, 5 4 2 ,
218, 237-8, 241-3 and
543, 544/Add.1, 570 and R e v . l
246-7
and 2, 622, 623, 625, 629 and
631/Rev.2 and ESC ( X I I l ) ,
s u p p l . 9, p a r a s . 59-60 and
annex 1, p a r t V, A r t . 60
ESC ( X I I I ) E S C (XIII), 523rd mtg., E / 2 0 4 8 / A d d . l , p a r a . 7 and 60
p a r a . 17 Annex I I I , E/2057/Add.l, 2
and 4 and E/2059/Add.2,
para. 4

GA (VI) 3rd Com., 360th mtg., para'.

58, 36lst mtg., p a r a . 4 7 ,
362nd mtg., p a r a . 6, 363rd
mtg., p a r a . -41,367th mtg.,paras.
3 3 - 4 and 371st mtg., p a r a . 1 0

CHR (VIII) E/CN.4/530/Add.l, p a r a s . 29-33, 60

E/CNA/654/Add.2 and E/UNA/
655/AddA, E/CN A/659

CHR ( X ) E/CNA/SR.420 and 4 2 6 E/CNA/L.325, L.326 and R e v . l ,

L. 327 and L.329 and ESC
( X V I I l ) , s u p p l . 7, p a r a s .
77-97 and annex I , s e c t i o n A,
p a r t IV, a r t . 17

GA ( I X ) 3rd Com., 571st mtg.,

p a r a . 11 and 572nd p a r a s . 17
2 8 and 4 2
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ARTICLE 18

T i m i n g and c o n t e n t s of reports

1. The S t a t e s P a r t i e s s h a l l f u r n i s h t h e i r r e p o r t s i n
s t a g e s , i n accordance w i t h a programme t o he
e s t a b l i s h e d b y t h e Economic and S o c i a l C o u n c i l a f t e r
c o n s u l t a t i o n w i t h t h e S t a t e s P a r t i e s t o t h i s Covenant
and t h e s p e c i a l i z e d agencies concerned.

2. Reports may i n d i c a t e f a c t o r s and d i f f i c u l t i e s

a f f e c t i n g t h e degree o f f u l f i l m e n t o f o b l i g a t i o n s
under t h i s Covenant.

3. Where r e l e v a n t i n f o r m a t i o n has a l r e a d y p r e v i o u s l y
been f u r n i s h e d t o t h e U n i t e d N a t i o n s o r t o any
s p e c i a l i z e d agency b y any S t a t e P a r t y i t w i l l n o t be
necessary t o reproduce t h a t i n f o r m a t i o n b u t a p r e c i s e
r e f e r e n c e t o t h e i n f o r m a t i o n so f u r n i s h e d w i l l s u f f i c e .

The Programme o f R e p o r t i n g

11. Paragraph 1 o f a r t i c l e 18 does n o t c o n t a i n d e t a i l s r e g a r d i n g t h e contents

o f t h e r e p o r t s w h i c h S t a t e s p a r t i e s are t o f u r n i s h . The f e e l i n g was expressed
t h a t t o s e t o u t such d e t a i l s was n o t e s s e n t i a l , p a r t i c u l a r l y s i n c e t h e covenant,
once i t had been adopted and had e n t e r e d i n t o f o r c e , would n o t be e a s i l y
amendable. I t was t h o u g h t t h a t i t would b e more l o g i c a l t o s p e c i f y t h a t t h e
body empowered t o r e c e i v e t h e r e p o r t s s h o u l d a l s o d e c i d e what f o r m t h o s e
r e p o r t s should t a k e .
12. The Working Group on whose p r o p o s a l t h e p a r a g r a p h was adopted agreed t h a t t h e
word "programme" used i n t h e p a r a g r a p h was i n t e n d e d t o s i g n i f y a programme f o r
t h e " t i m i n g , f o r m and substance o f t h e r e p o r t s . " ^

4/ E/CN.4/AC.15/SR 2, E/CN.4/AC.15/R.1, E/CN.4/AC.l4/2/Add.5,

E/CN/SR.241, 243, 246 and 423, E/CN.4/530/Add.1, p a r a . 33,
E/CN.4/57O and R e v . l and 2, E/CN.4/622, 623, 625, 629, 630 and
675, p a r a . 11 and E/2057/Add.2.
5/ E/CN.4/AC.I5/SR.2, p . 33-
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I n d i c a t i o n o f f a c t o r s and d i f f i c u l t i e s a f f e c t i n g t h e degree o f f u l f i l m e n t
o f o b l i g a t i o n s 6/

13. The concept u n d e r l y i n g p a r a g r a p h 2 was accepted on t h e grounds t h a t i t

emphasized t h e f a c t t h a t t h e r e p o r t i n g p r o c e d u r e was i n t e n d e d t o r e p r e s e n t a
system o f m u t u a l a i d and p r o g r e s s i v e p r o m o t i o n o f human r i g h t s r a t h e r t h a n a
machinery o f enforcement. A t t e n t i o n was drawn t o a s i m i l a r p r o v i s i o n c o n t a i n e d
i n t h e C o n s t i t u t i o n o f t h e I n t e r n a t i o n a l Labour O r g a n i s a t i o n .

Reference t o i n f o r m a t i o n p r e v i o u s l y f u r n i s h e d t o t h e U n i t e d N a t i o n s o r t o a
s p e c i a l i z e d agency 7/

14. The concept u n d e r l y i n g p a r a g r a p h 3 was accepted on t h e grounds o f

a d m i n i s t r a t i v e convenience. I t was e x p l a i n e d , however, t h a t t h e p r e c i s e w o r d i n g
adopted was i n t e n d e d t o make i t c l e a r t h a t a S t a t e p a r t y which had a l r e a d y
s u b m i t t e d c e r t a i n i n f o r m a t i o n was n o t t h e r e b y a b s o l v e d from r e p o r t i n g upon
m a t t e r s n o t covered b y t h a t i n f o r m a t i o n o r f r o m c o m p l e t i n g o r b r i n g i n g up t o
date i n f o r m a t i o n already given.

6/ E/CN.4/AC.15/SR.2, E/CNA/AC.15/R.1, E/CN-VAC.l4/2/Rev.5, E/CN.4/SR.2hl,

2K6 and I+23, E/CN.1+/570 and R e v . l and 2 and E/CNA/622, {'5 and 629.
7/ E/CNA/AC.15/SR.2, E/CNA/AC.I5/R.I, E/CN.VAC.lV2/Add.5,
E/CN.1+/SR.238, 21+6 and 423, E/CNA/570 and R e v . l and 2, 622,
625 and 629.
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DOCUMENTATION

Organ and Article

session Records o f d i s c u s s i o n Other documents number
CHR ( V I I ) E/CN.4/AC.15/SR.2, E/CN.4/AC.14/2/Add.5,
E/CN.ysR.238, 24l, 243 E/CN.4/AC.15/R.1, E/CN.4/57O
and 246 and R e v . l and 2, 622, 623, 625,
629 and 630 and ESC ( X I I l ) ,
s u p p l . 9, p a r a . 59 and Annex I ,
p a r t V, a r t . 6 l

ESC ( X I I I ) E/2057/Add.2 61

CHR ( V I I I ) E/CN.4/530/Add.l, p a r a . 33 61

CHR ( I X ) E/CN.4/675, p a r a . 11 6l

CHR ( X ) E/CN.4/SR.423 ESC ( X V I I I ) , s u p p l . 7, 61

p a r a s . 9 8 - and annex I ,
s e c t i o n A, p a r t I V , a r t . 18
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ARTICLE 19

Arrangements w i t h s p e c i a l i z e d agencies

Pursuant t o i t s r e s p o n s i b i l i t i e s under t h e C h a r t e r i n
t h e f i e l d o f human r i g h t s , t h e Economic and S o c i a l C o u n c i l
may make arrangements w i t h t h e s p e c i a l i z e d agencies i n
r e s p e c t o f t h e i r r e p o r t i n g t o i t on t h e p r o g r e s s made i n
a c h i e v i n g t h e observance o f t h e p r o v i s i o n s o f t h i s Covenant
f a l l i n g w i t h i n t h e scope o f t h e i r a c t i v i t i e s . These r e p o r t s
may i n c l u d e p a r t i c u l a r s o f d e c i s i o n s and recommendations on
such i m p l e m e n t a t i o n adopted b y t h e i r competent organs.

13. D u r i n g t h e d r a f t i n g o f t h i s a r t i c l e s t r e s s was a g a i n p l a c e d upon t h e

g e n e r a l r e s p o n s i b i l i t i e s o f t h e Economic and S o c i a l C o u n c i l i n r e s p e c t o f human
r i g h t s , and one i n t e n t i o n o f i t s a u t h o r s was t h a t , whatever m i g h t be d e c i d e d
on t h e q u e s t i o n o f t h e d e s t i n a t i o n o f t h e r e p o r t s o f S t a t e s p a r t i e s , t h e C o u n c i l
would i n due t i m e be s e i z e d o f i n f o r m a t i o n on t h e observance b y a l l S t a t e s
p a r t i e s o f a l l t h e p r o v i s i o n s o f t h e covenant on economic, s o c i a l and c u l t u r a l
rights. A t h e s i s p u t f o r w a r d and n o t c o n t e s t e d was t h a t t h e arrangements t o
be made b y t h e C o u n c i l w i t h t h e s p e c i a l i z e d agencies " s h o u l d r e l a t e b o t h t o
t h e manner o f t h e r e p o r t i n g and t o t h e substance o f t h e r e p o r t s " t o b e made
by the l a t t e r . ^
16. The c h o i c e o f t h e word "may" i n s t e a d o f " s h a l l " was defended on t h e
grounds t h a t , w h i l e t h e r e was no doubt t h a t t h e C o u n c i l would agree t o make t h e
arrangements envisaged, i t was l e g a l l y i m p o s s i b l e f o r a m u l t i l a t e r a l t r e a t y t o
impose o b l i g a t i o n s on t h e C o u n c i l ; and ( i i ) on t h e grounds t h a t t h e covenant
c o u l d n o t impose o b l i g a t i o n s on t h e s p e c i a l i z e d agencies and t h a t such agencies
should b e l e f t f r e e t o d e c i d e w h i c h d e c i s i o n s and recommendations t h e y wished
t o forward t o the Council.
17. The c h o i c e o f words " w i t h i n t h e scope o f t h e i r a c t i v i t i e s " i n s t e a d o f
" w i t h i n t h e i r competence" was defended on t h e grounds t h a t t o speak o f
competence would r a i s e c o n s t i t u t i o n a l and j u r i s d i c t i o n a l q u e s t i o n s .

8/ E/CNA/AC.15/SR.2, p . 29.
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DOCUMENTATION

Organ and Article

session Records o f d i s c u s s i o n Other documents number
CHR ( V I I ) E/CN.4/AC.I5/SR.2, E/CN.4/AC.15/R.1, E/CN.4/570
E/CN-.4/SR.243, 246 and and R e v . l and 2, 629 and 631/
247 Rev.2 and ESC ( X I I l ) s u p p l . 9,
p a r a . 60 and annex I , p a r t V,
A r t . 62

CHR ( I X ) E/CN.4/675, p a r a . 31 62

CHR ( X ) E/CN.4/SR.424 E/CN.4/L.325 and ESC ( X V I I I ) ,

s u p p l . 7, p a r a s . 110-21 62

GA ( I X ) 3rd. Com., 572nd mtg.,

p a r a . 42 19
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ARTICLE 20

F u n c t i o n o f t h e Commission on Human R i g h t s

The Economic and S o c i a l C o u n c i l may t r a n s m i t t o t h e

Commission on Human R i g h t s f o r s t u d y and g e n e r a l recommendation
o r as a p p r o p r i a t e f o r i n f o r m a t i o n t h e r e p o r t s c o n c e r n i n g human
r i g h t s s u b m i t t e d b y S t a t e s , and those c o n c e r n i n g human r i g h t s
s u b m i t t e d b y t h e s p e c i a l i z e d agencies.

1
Reference t o t h e Commission on Human R i g h t s
l8. When i t was d e c i d e d t h a t a r t i c l e 20 s h o u l d mention t h e Commission on Human
R i g h t s , two o t h e r a l t e r n a t i v e s d i s c u s s e d were r e j e c t e d : ( i ) t h a t the Council
s h o u l d alone be mentioned, and so be l e f t e n t i r e l y f r e e t o decide on t h e procedure
f o r d e a l i n g w i t h r e p o r t s , and ( i i ) t h a t t h e C o u n c i l s h o u l d be r e q u i r e d t o
e s t a b l i s h e v e r y year a Committee, o f persons s e r v i n g i n t h e i r i n d i v i d u a l c a p a c i t i e s
b u t r e s t r i c t e d t o n a t i o n a l s o f S t a t e P a r t i e s , t o examine t h e r e p o r t s and t o r e p o r t
to the Council. The t e x t adopted r e f l e c t s a predominance o f s u p p o r t f o r t h e view
t h a t t h e i n t e r e s t o f t h e Commission on Human R i g h t s i n t h e m a t t e r s h o u l d be
e x p r e s s l y r e c o g n i z e d , even though S t a t e s w h i c h d i d n o t adhere t o t h e covenant
might so be enabled t o comment on t h e performance o f those w h i c h d i d adhere. At a
stage subsequent t o t h i s d e c i s i o n t o mention t h e Commission, i t was p o i n t e d o u t
t h a t t h e covenant c o u l d n o t and s h o u l d n o t a t t e m p t t o b i n d t h e a c t i o n s o f t h e
C o u n c i l , and c o n s e q u e n t l y t h e word "may" was s u b s t i t u t e d f o r "must".

Possible a c t i o n b y the Commission'

19. I t was m a i n t a i n e d t h a t t o i n s e r t b e f o r e t h e word "recommendation" t h e word
" g e n e r a l " w o u l d be i n keeping w i t h a w i d e l y h e l d view t h a t t h e r e p o r t s s h o u l d n o t

9/ E / C N . 4 / A C . 1 5 / S R . 3 , E/CW.4/SR.237,'238, 241, 242 , 243 , 247 and 424,

E/CW.4/L.325, E/CN.4/530/Add.l, p a r a . 34, E/CN.4/570 and R e v . l and 2,
623, 624, 625, 629 and 630, E/2059/Add.2, p a r a . 4 and GA ( i x )
3rd. Com., 575th mtg., p a r a . 32
10/ E/CN.4/SR.424, E/CN.4/530/Add.l, p a r a . 35,
E/CN.4/675, p a r a s . 12-13, E/CN.4/L.325 and E/2057/Add.2.
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g i v e r i s e t o p a r t i c u l a r recommendations t o i n d i v i d u a l S t a t e s , s i n c e , i n t h e view
o f some, t h a t would he c o n t r a r y t o A r t i c l e 2, paragraph 7, o f t h e C h a r t e r , The
purpose o f t h e Commission's g e n e r a l recommendations would he t o draw a t t e n t i o n t o
o b s t a c l e s encountered by S t a t e s i n a t t a i n i n g t h e f u l l r e a l i z a t i o n o f t h e r i g h t s
enumerated i n t h e covenant and t o a s c e r t a i n what t h e U n i t e d N a t i o n s c o u l d do t o
h e l p them t o overcome those o b s t a c l e s . The i n c l u s i o n o f t h e word " g e n e r a l " was
opposed on t h e grounds t h a t , a p a r t f r o m t h e f a c t t h a t t h e General Assembly and
t h e C o u n c i l were empowered t o make s p e c i f i c recommendations t o p a r t i c u l a r S t a t e s ,
any S t a t e a c c e d i n g t o t h e covenant would t h e r e b y i m p l i c i t l y accept t h e C o u n c i l ' s
r i g h t t o make such recommendations, so t h a t t h e q u e s t i o n o f v i o l a t i o n o f
A r t i c l e 2, paragraph 7? o f t h e C h a r t e r would n o t a r i s e .
20. The i n c l u s i o n o f t h e words " o r as a p p r o p r i a t e f o r i n f o r m a t i o n " was urged
on t h e grounds t h a t t h e s p e c i a l i z e d agencies m i g h t w e l l submit voluminous and
h i g h l y t e c h n i c a l r e p o r t s , on w h i c h t h e Commission, as a t p r e s e n t c o n s t i t u t e d ,
m i g h t f i n d i t d i f f i c u l t t o make s t u d i e s and recommendations. I t should t h e r e f o r e
be made c l e a r t h a t i t was n o t necessary f o r a l l r e p o r t s t o be t h e s u b j e c t o f
d i s c u s s i o n and recommendation b y t h e Commission. On t h e o t h e r hand, i t was
c l a i m e d t h a t i f t h e words I n q u e s t i o n were n o t i n c l u d e d t h e Commission would n o t
be o b l i g e d t o s t u d y and make recommendations on a l l r e p o r t s w h i c h i t m i g h t r e c e i v e .
The hope was expressed t h a t t h e i n c l u s i o n o f t h e w o r d i n g i n q u e s t i o n would n o t
p r e c l u d e t h e e s t a b l i s h m e n t by t h e Commission o f a committee o f e x p e r t s t o c a r r y
out a p r e l i m i n a r y examination o f m a t e r i a l s r e c e i v e d .
21. As one argument a g a i n s t t h e r e p o r t i n g procedure as a whole, i t was s a i d t h a t
t h e system would c o n f e r new powers on t h e Commission on Human R i g h t s exceeding
i n some r e s p e c t s those o f t h e Economic and S o c i a l C o u n c i l , and even those o f t h e
General Assembly.
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DOCUMENTATION

Article
Organ and Session Records o f d i s c u s s i o n Other documents number

CHR ( V I I ) E/CN.4/AC.15/SR.3, E/CN.4/570 and R e v . l and 2, D

E/CN . 4/SR.237,238,241, 623, 624, 625, 629 and 630
242, 243 and 247 and ESC ( X I I I ) , s u p p l . 9 ,
p a r a . 6 l and annex I , p a r t V,
art.63

ESC ( X I I I ) E/2059/Add.2 p a r a . 4 63

CHR ( V I I I ) E/CN.4/530/Add.l, paras.34-35 63

CHR ( I X ) E/CN.4/675, paras.12-13 63

CHR (X) E/CN.4/SR.421 and 424 E/CN.4/L.325 and ESC ( X V I I I ) , 63

suppl.7, p a r a s . 76 and 122-32

GA ( I X ) 3rd Com., 575th mtg., 20

p a r a . 32
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ARTICLE 21

Submission o f comments c o n c e r n i n g g e n e r a l recommendations

o f t h e Commission on Human R i g h t s

The S t a t e s P a r t i e s d i r e c t l y concerned and t h e s p e c i a l i z e d

agencies may submit comments t o t h e Economic and S o c i a l C o u n c i l
on any g e n e r a l recommendation under a r t i c l e 20 o r r e f e r e n c e
t o such g e n e r a l recommendation i n any r e p o r t o f t h e Commission
o r any documentation r e f e r r e d t o t h e r e i n .

22. There was some f e e l i n g t h a t t h i s a r t i c l e was redundant and t h a t i t would be

d i f f i c u l t t o d e t e r m i n e what were t h e S t a t e s d i r e c t l y concerned. I t was observed,
on t h e o t h e r hand, t h a t S t a t e s p a r t i e s m i g h t w i s h t o submit a d d i t i o n a l information
and t h a t t h e Commission o r t h e C o u n c i l m i g h t w i s h t o o b t a i n such information.

DOCUMENTATION
Article
Organ and Session Records o f d i s c u s s i o n Other documents number

CHR ( V I I ) E/CN.VAC.15/SR.3 and / / 5 7 0 and R e v . l and 2, E

E/CN.ySR.243 and 2hY E/CN.V629 and E S C ( X I I I ) ,
suppl.9, p a r a . 6 l and annex I ,
p a r t V, A r t . 6k

CHR (X) E/CN.VSRA24 E/CN.4/L.325 and E S C ( X V I I l ) , 6k

s u p p l . 7 , paras.133-139
 /2929
English
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AHUCIE 22

R e p o r t i n g hy t h e Economic and S o c i a l C o u n c i l t o t h e
G e n e r a l Assembly

The Economic and S o c i a l C o u n c i l may submit f r o m t i m e t o

t i m e t o t h e General Assembly, w i t h i t s own r e p o r t s , r e p o r t s
summarizing t h e i n f o r m a t i o n made a v a i l a b l e by t h e S t a t e s P a r t i e s
t o t h e Covenant d i r e c t l y t o t h e S e c r e t a r y - G e n e r a l and b y t h e
s p e c i a l i z e d agencies under A r t i c l e ... i n d i c a t i n g t h e p r o g r e s s
made i n a c h i e v i n g g e n e r a l observance o f these r i g h t s .

23. T h i s a r t i c l e was adopted d e s p i t e some f e e l i n g t h a t i t was e i t h e r s u p e r f l u o u s

o r c o n s t i t u t e d an a t t e m p t t o c o n t r o l t h e a c t i o n s o f h i g h e r U n i t e d N a t i o n s organs.
The i n c l u s i o n i n t h e t e x t o f t h e words " w i t h i t s own r e p o r t s " was i n t e n d e d
t o s i g n i f y t h a t t h e C o u n c i l c o u l d submit t o t h e General Assembly i t s own comments
and recommendations on t h e r e p o r t s r e c e i v e d by i t .
2k. The c r o s s - r e f e r e n c e made i n t h i s a r t i c l e i s p r o b a b l y i n t e n d e d t o r e f e r t o
t h e r e p o r t s o f S t a t e s p a r t i e s and s p e c i a l i z e d agencies made i n accordance w i t h
a r t i c l e 17.

DOCUMENTATION
Article
Organ and Session Records o f d i s c u s s i o n Other documents number

CHR ( V I I ) E/CNA/AC.15/SR.3 and E/CNA/622, 625, 629 and 63 F

E/CNA/SR.243 and 2^7 and ESC ( X I I I ) , suppl.9,
p a r a . 6 l and annex I , p a r t V,
a r t .65

CHR ( I X ) E/CNA/675, para.32 65

CHR (X) E/CNA/SRA24 ESC ( X V I I I ) , suppl.7, para.l^O 65

GA ( I X ) 3rd Com., 572nd mtg., 22
p a r a A2
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ARTICLE 23

Technical assistance

The Economie and S o c i a l C o u n c i l may b r i n g t o t h e a t t e n t i o n

o f t h e i n t e r n a t i o n a l organs concerned w i t h t e c h n i c a l a s s i s t a n c e
o r o f any o t h e r a p p r o p r i a t e i n t e r n a t i o n a l organ any m a t t e r s a r i s i n g
o u t o f t h e r e p o r t s r e f e r r e d t o i n t h i s p a r t o f t h e Covenant w h i c h
may a s s i s t such organs i n d e c i d i n g , each w i t h i n i t s competence,
on t h e a d v i s a b i l i t y o f i n t e r n a t i o n a l measures l i k e l y t o c o n t r i b u t e
t o t h e p r o g r e s s i v e i m p l e m e n t a t i o n o f t h i s Covenant.

25. There was some o p p o s i t i o n t o t h e i n c l u s i o n o f t h i s a r t i c l e i n t h e d r a f t

covenant on t h e grounds, on t h e one hand, t h a t i t p u r p o r t e d t o r e g u l a t e t h e
conduct o f t h e Economic and S o c i a l C o u n c i l , whose f u n c t i o n s were l a i d down i n t h e
C h a r t e r , and, on t h e o t h e r hand, t h a t such a p r o v i s i o n was s u p e r f l u o u s . The
a r t i c l e does, however, r e f l e c t t h e p r e v a i l i n g view t h a t t h e p r o m o t i o n o f
economic, s o c i a l and c u l t u r a l r i g h t s depends, t o a c o n s i d e r a b l e e x t e n t , upon
economic c o n d i t i o n s and t h a t t h e p o s s i b i l i t y o f t h e p r o v i s i o n o f t e c h n i c a l
a s s i s t a n c e has a p a r t i c u l a r r e l e v a n c e t o t h e i m p l e m e n t a t i o n o f t h e covenant.
S t r e s s was p l a c e d I n t h i s connexion a l s o upon t h e c h a r a c t e r o f t h e r e p o r t i n g
procedure as a means o f m u t u a l a s s i s t a n c e r a t h e r t h a n as a procedure involving
the a p p l i c a t i o n o f sanctions.
26, I t was i n t e n d e d t h a t "matters a r i s i n g o u t o f t h e r e p o r t s r e f e r r e d t o i n t h i s
p a r t o f t h e Covenant" would i n c l u d e , h u t n o t be l i m i t e d t o , r e l e v a n t f i n d i n g s
o f t h e Commission on Human R i g h t s . The words " t h e i n t e r n a t i o n a l organs concerned
v."ith t e c h n i c a l a s s i s t a n c e " were p r e f e r r e d t o a r e f e r e n c e t o t h e T e c h n i c a l Assistance
Board because o f t h e need t o t a k e account o f p o s s i b l e f u t u r e changes i n t h e
d e s i g n a t i o n o f t h e organ o r emergence o f o t h e r organs.
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DOCUMENTATION
Article
Organ and Session Records o f d i s c u s s i o n Other documents number

CHR ( V I I ) E/CN.4/AC14/SR.2, E/CN.4/529, p a r a s . 62-65, G

E/CN/. 15/SR-, / / 5 7 and R e v . l and 2,
E/CN.4/SR.237,238,241, 622, 623, 625 and 629 and
242, 243 and 247 ESC ( X I I l ) , s u p p l . 9 , para.62
and annex I , p a r t V, a r t . 6 6

ESC ( X I I I ) 523rd mtg., para.32 66

GA ( V I ) 3rd Com,, 363rd mtg.,

p a r a . 4 1 and 371st mtg.,
para.22

CHR ( V I I I ) //530/Add.l, paras.30

and 32

CHR ( I X ) E/CN.4/675, para.33 66

CHR (X)
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ARTICLE 2k

Types o f i n t e r n a t i o n a l a c t i o n

The S t a t e s P a r t i e s t o t h e Covenant agree t h a t i n t e r n a t i o n a l

a c t i o n f o r t h e achievement o f these r i g h t s i n c l u d e s such methods
as c o n v e n t i o n s , recommendations, t e c h n i c a l a s s i s t a n c e , r e g i o n a l
meetings and t e c h n i c a l meetings and s t u d i e s w i t h governments.

27- W h i l e i t was observed t h a t such a statement as t h a t c o n t a i n e d i n t h i s

a r t i c l e was s e l f - e v i d e n t , t h i s p r o v i s i o n was accepted as p r o v i d i n g a c o n c e p t i o n
of t h e range o f p o s s i b l e i n t e r n a t i o n a l a c t i o n f o r t h e i m p l e m e n t a t i o n o f t h e
r i g h t s d e a l t w i t h i n t h e d r a f t covenant on economic, s o c i a l and c u l t u r a l r i g h t s ;
i t was observed i n p a r t i c u l a r t h a t i t l e f t t h e door open f o r t h e p r o v i s i o n o f
a s s i s t a n c e o t h e r t h a n t e c h n i c a l a s s i s t a n c e i n t h e s t r i c t sense.
28. I t was proposed t o r e p l a c e t h e a r t i c l e b y t h e f o l l o w i n g :
"The S t a t e s P a r t i e s t o t h e Covenant agree t h a t i n t e r n a t i o n a l a c t i o n
f o r t h e achievement o f these r i g h t s i n c l u d e s such methods as conventions'
and recommendations i n accordance w i t h t h e C h a r t e r o f t h e U n i t e d N a t i o n s . "
29. I n s u p p o r t o f t h i s p r o p o s a l i t was argued t h a t i t was e s s e n t i a l t o
safeguard the a u t h o r i t y o f t h e Charter. By s p e c i f y i n g t h a t c o n v e n t i o n s and
recommendations were t o be i n accordance w i t h t h e C h a r t e r , t h e a r t i c l e would be
b r o u g h t i n t o l i n e w i t h A r t i c l e 62 o f t h e C h a r t e r , w h i c h concerned t h e terms o f
r e f e r e n c e o f t h e Economic and S o c i a l C o u n c i l , and would a l s o b r i n g i n t o o p e r a t i o n
A r t i c l e 2, paragraph 7 o f t h e C h a r t e r r e l a t i n g t o t h e domestic j u r i s d i c t i o n of
States.
30. A g a i n s t t h e p r o p o s a l i t was argued t h a t a r t i c l e 25 s u f f i c i e n t l y safeguarded
the C h a r t e r o f t h e U n i t e d N a t i o n s and t h a t r e p e t i t i o n i n t h e p r e s e n t a r t i c l e o f
a r e f e r e n c e t o t h e C h a r t e r m i g h t i m p a i r t h e e f f e c t o f t h a t a r t i c l e and l e a d t o
difficulties o f i n t e r p r e t a t i o n . On t h e o t h e r hand i t was i n s i s t e d t h a t a separate
mention o f t h e C h a r t e r i n t h e p r e s e n t a r t i c l e was j u s t i f i e d because a r t i c l e 25
was a more g e n e r a l l y worded p r o v i s i o n . Moreover, a r t i c l e 25 concerned t h e
provisions o f t h e Covenant whereas t h e p r e s e n t a r t i c l e concerned t y p e s o f
i n t e r n a t i o n a l a c t i o n w h i c h m i g h t be t a k e n i n a d d i t i o n t o those s p e c i f i c a l l y
p r o v i d e d i n t h e Covenant.
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31. I t was p o i n t e d o u t t h a t a r t i c l e 25 was d r a f t e d i n o r d e r t o r e c o g n i z e t h e

r e s p o n s i b i l i t i e s o f t h e U n i t e d N a t i o n s and t h e s p e c i a l i z e d agencies and t h e
w o r d i n g proposed f o r t h e p r e s e n t a r t i c l e b y r e f e r r i n g o n l y t o t h e C h a r t e r might
g i v e t h e i m p r e s s i o n t h a t t h e c o n s t i t u t i o n s o f t h e s p e c i a l i z e d agencies were n o t
t o be s i m i l a r l y r e s p e c t e d . On t h e o t h e r hand, i t was m a i n t a i n e d t h a t t h e
amendment w o u l d n o t p r e j u d i c e t h e p o s i t i o n o f t h e s p e c i a l i z e d a g e n c i e s , since t h e
r e f e r e n c e t o t h e C h a r t e r would b r i n g i n t o o p e r a t i o n i t s A r t i c l e s 57 and 63
c o n c e r n i n g t h e r e l a t i o n s h i p between t h e U n i t e d N a t i o n s a n d t h e s p e c i a l i z e d
agencies and would s a f e g u a r d a l l agreements between t h e U n i t e d N a t i o n s and those
agencies.
32. The p r o p o s a l a l s o i n v o l v e d t h e d e l e t i o n o f a l l r e f e r e n c e s t o t y p e s o f
i n t e r n a t i o n a l a c t i o n o t h e r t h a n c o n v e n t i o n s and recommendations, on t h e
ground t h a t t h e words used t o d e s c r i b e them were n o t p r e c i s e i n t h e i r meaning.
On t h e o t h e r hand, i t was m a i n t a i n e d t h a t t h e enumeration o f f u r t h e r t y p e s o f
i n t e r n a t i o n a l a c t i o n was u s e f u l , and t h a t t h e methods i n d i c a t e d m i g h t i n f a c t
be p r e p a r a t o r y t o t h e c o n c l u s i o n o f c o n v e n t i o n s o r t o t h e making o f
recommendations.

DOCUMENTATION

Organ and Article

session Records o f d i s c u s s i o n Other documents number

CHR ( V I I ) E/CN.4/AC.15/SR.3 and E/CN.4/622, 625 and 629 and H

E/CN.4/SR.247 ESC ( X I I I ) suppl.9, p a r a . 63
and annex I , p a r t V, a r t . 67

CHR ( I X ) E/CN.4/675, p a r a . 34 67

CHR (X) E/CN.4/SR.424-6 E/CN.4/L.330 and ESC ( X V I I I ) 67

s u p p l . 7, p a r a s . 148-62

GA ( I X ) 3rd. Com., 572nd mtg., 24

p a r a . 4 2 and 575rd, p a r a . 2 4
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ARTICLE 25

R e l a t i o n s between t h e U n i t e d N a t i o n s and
t h e S p e c i a l i z e d Agencies

N o t h i n g i n t h i s Covenant s h a l l be i n t e r p r e t e d as i m p a i r i n g
t h e p r o v i s i o n s o f t h e C h a r t e r o f t h e U n i t e d N a t i o n s and o f t h e
c o n s t i t u t i o n s o f t h e s p e c i a l i z e d agencies, which d e f i n e t h e
r e s p e c t i v e r e s p o n s i b i l i t i e s o f t h e v a r i o u s organs o f t h e U n i t e d
N a t i o n s and o f t h e s p e c i a l i z e d agencies i n r e g a r d t o t h e m a t t e r s
d e a l t w i t h i n t h i s Covenant.

33 The o p i n i o n was expressed t h a t t h i s a r t i c l e s h o u l d end a t t h e words "Charter

o f t h e U n i t e d N a t i o n s " , s i n c e t h e r e m a i n i n g words were s u p e r f l u o u s i n v i e w o f
t h e e x i s t e n c e o f agreements d e f i n i n g t h e r e l a t i o n s between t h e U n i t e d N a t i o n s and
the s p e c i a l i z e d agencies. The t e x t was, however, adopted as r e p r e s e n t i n g what
appeared t o be a p r o p e r a l l o c a t i o n o f r e s p o n s i b i l i t i e s between t h e U n i t e d N a t i o n s
and t h e s p e c i a l i z e d agencies.
34. T h i s a r t i c l e i s i d e n t i c a l w i t h a r t i c l e 50 o f t h e d r a f t covenant on c i v i l
and p o l i t i c a l r i g h t s . F o r f u r t h e r - v i e w s on t h e t e x t , see Chapter V I I .

DOCUMENTATION

Organ and Article

session Records o f d i s c u s s i o n Other documents number

BR ( V I I ) E / C N / . 1 5 / S R . 3 and E/CN.4/AC.14/1 and 2/Add.5, J

E/CN.4/SR.203, 205, 206, E/CN.4/529, paras.54-5,
207, 218, 237, 2 4 1 and E/CN.4/543, E/CN.4/622 and
247 629 and ESC ( X I I I ) , suppl.9,
p a r a . 64 and annex I ,
p a r t V, a r t . 69

ESC ( X I I l ) 523rd mtg., p a r a . 15 E/2057/Ad.l and 2 69

CHR (VIII) E/CN.4/530/Add.l, p a r a . 36 and 69

E/CN.4/655/Add.2

CHR ( X ) E/CN.4/SR.426 ESC ( X V I I I ) Suppl. 7,

p a r a s . 167-70
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PUBLICATION OF REPORTS

35- A t one stage t h e f o l l o w i n g a r t i c l e appeared between a r t i c l e s 2k and 25:

"Unless o t h e r w i s e d e c i d e d b y t h e Commission on Human R i g h t s o r b y

t h e Economic and S o c i a l C o u n c i l o r r e q u e s t e d b y t h e S t a t e d i r e c t l y
concerned, t h e S e c r e t a r y - G e n e r a l o f t h e U n i t e d N a t i o n s s h a l l arrange
f o r t h e p u b l i c a t i o n o f t h e r e p o r t o f t h e Commission on Human R i g h t s ,
o r r e p o r t s p r e s e n t e d t o t h e C o u n c i l b y s p e c i a l i z e d agencies, as w e l l
as a l l d e c i s i o n s and recommendations reached b y t h e Economic and S o c i a l
Council."

36. The a r t i c l e was however d e l e t e d f r o m t h e d r a f t covenant. I n favour o f

d e l e t i o n i t was p o i n t e d o u t t h a t t h e p r o v i s i o n would a p p a r e n t l y p e r m i t e i t h e r t h e
Commission on Human R i g h t s o r t h e Economic and S o c i a l C o u n c i l o r t h e S t a t e
d i r e c t l y concerned t o p r e v e n t t h e p u b l i c a t i o n o f any o f t h e r e p o r t s , d e c i s i o n s
or recommendations s p e c i f i e d i n t h e A r t i c l e . Should a S t a t e submit i n f o r m a t i o n
o f a c o n f i d e n t i a l n a t u r e , i t c o u l d ask f o r a c l o s e d d i s c u s s i o n , b u t i f i t a l l o w e d
t h e m a t t e r t o be o p e n l y d i s c u s s e d , i t w o u l d c l e a r l y be t o o l a t e a f t e r w a r d s t o ask
t h a t t h e r e s h o u l d be no p u b l i c i t y . Again, i f a State disapproved o f c e r t a i n
aspects o f t h e r e p o r t s , t h a t S t a t e c o u l d demonstrate publicly that certain
statements o r c o n c l u s i o n s had been g r o u n d l e s s ; moreover, under a r t i c l e 21, i t
c o u l d submit comments t o t h e Economic and S o c i a l C o u n c i l . Furthermore, i t was
n o t c l e a r what r e p o r t o f t h e Commission on Human R i g h t s and what r e p o r t s
p r e s e n t e d t o t h e C o u n c i l b y s p e c i a l i z e d agencies were r e f e r r e d t o .
37- I n f a v o u r o f t h e A r t i c l e , i t was argued t h a t i t was i m p o r t a n t t o g i v e
S t a t e s p a r t i e s t h e r i g h t t o p r e v e n t p u b l i c a t i o n , and t h a t t h e a r t i c l e , b y
p r o v i d i n g t h e p o s s i b i l i t y o f a k i n d o f r e s e r v a t i o n , would encourage S t a t e s t o
s u p p l y t h e necessary information.
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DOCUMENTATION

Organ and Article

session Records o f d i s c u s s i o n Other documents number

CHR ( V I I ) E/CN.U/AC.15/SR.3 and E/CN.U/570 and R e v . l and 2 and 1

E/CN.4/SR.243 and 247 629 and ESC ( X I I I ) , s u p p l . 9,
p a r a . 63 and annex I , p a r t V,
a r t . 68

CHR ( I X ) E/CN.4/675, p a r a . 35 68

CHR ( X ) E/CN.4/SR.420 and 426 E/CN. VL. 325 and ESC ( X V T I l ) , 68

s u p p l . 7, paras. 163-6
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THE APPLICABILITY OF THE HUMAN RIGHTS COMMITTEE PROCEDURE TO

THE DRAFT COVENANT ON ECONOMIC, SOCIAL AND CULTURAL RIGHTS

38. A l t h o u g h i t was emphasized t h a t c i v i l and p o l i t i c a l r i g h t s and economic,

s o c i a l and c u l t u r a l r i g h t s were i n t e r d e p e n d e n t and t h a t t h e measures f o r t h e i r
i m p l e m e n t a t i o n s h o u l d he s i m i l a r , no p r o p o s a l s were s u b m i t t e d f o r t h e a u t o m a t i c
or u n c o n d i t i o n a l a p p l i c a t i o n o f t h e human r i g h t s committee procedure t o t h e d r a f t
covenant on economic, s o c i a l and c u l t u r a l r i g h t s .
39- I t was p o i n t e d o u t t h a t t h e system o f p e r i o d i c r e p o r t s , as e v o l v e d i n
c o l l a b o r a t i o n w i t h t h e s p e c i a l i z e d a g e n c i e s , was t h e b e s t method o f i m p l e m e n t i n g
economic, s o c i a l and c u l t u r a l r i g h t s , w h i l e t h e human r i g h t s committee was
c o n c e i v e d as t h e most a p p r o p r i a t e way t o s a f e g u a r d c i v i l and p o l i t i c a l rights.
The n a t u r e o f t h e r i g h t s and o b l i g a t i o n s l a i d down i n each covenant, and t h e
f a c t t h a t c i v i l and p o l i t i c a l r i g h t s were t o be a p p l i e d f o r t h w i t h , w h i l e economic,
s o c i a l and c u l t u r a l r i g h t s were t o be a c h i e v e d p r o g r e s s i v e l y , j u s t i f i e d two
d i s t i n c t methods o f i m p l e m e n t a t i o n , n o t h w i t h s t a n d i n g General Assembly
r e s o l u t i o n 5^3 ( V l ) , w h i c h r e f e r r e d t o t h e i n c l u s i o n i n t h e two covenants o f as
many s i m i l a r p r o v i s i o n s as p o s s i b l e .
kO. The s p e c i a l i z e d a g e n c i e s , such as t h e ILO, UNESCO and WHO, were o f t h e
o p i n i o n t h a t t h e human r i g h t s committee procedure s h o u l d be a p p l i c a b l e o n l y t o
the c i v i l and p o l i t i c a l r i g h t s . I t was contended t h a t s p e c i a l i z e d agencies
were t e c h n i c a l l y b e t t e r q u a l i f i e d t o implement economic, s o c i a l and c u l t u r a l
r i g h t s , and t h e e x p e r i e n c e and procedures which t h e y had e v o l v e d i n connexion
w i t h those r i g h t s s h o u l d n o t be d i s r e g a r d e d . The c o n s t i t u t i o n o f t h e ILO, f o r
example, i n c l u d e d procedures f o r t h e h a n d l i n g o f c o m p l a i n t s , and any r e f e r r a l o f
m a t t e r s coming w i t h i n i t s p u r v i e w t o t h e human r i g h t s committee would l e a d o n l y
t o d u p l i c a t i o n and o v e r l a p p i n g and a f f e c t t h e a u t h o r i t y and e f f i c i e n c y o f b o t h
the committee and t h e ILO.
kl. Doubt was a l s o expressed whether t h e committee, which was t o be a
f a c t - f i n d i n g and c o n c i l i a t i o n body, concerned w i t h o b l i g a t i o n s t h e b r e a c h o f
which was a s c e r t a i n a b l e , c o u l d handle commitments o f t h e t y p e p r e s c r i b e d i n t h e
d r a f t covenant on economic, s o c i a l and c u l t u r a l r i g h t s . The committee would
have q u a s i - j u d i c i a l f u n c t i o n s , and i n t h e case o f t h e covenant on economic,
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s o c i a l and c u l t u r a l r i g h t s , t h e r e was no c r i t e r i o n capable o f p r o v i d i n g the basis

for semi-judicial decisions. Complaints r e l a t i n g t o t h a t covenant c o u l d o n l y
r e f e r t o i n s u f f i c i e n t programmes i n t h e a t t a i n m e n t o f c e r t a i n g o a l s and i t would
be i m p o s s i b l e f o r t h e committee t o determine what t h e r a t e o f p r o g r e s s i n any
p a r t i c u l a r case s h o u l d be. Moreover, t h e committee's membership would have t o
be changed i n o r d e r t o i n c l u d e e x p e r t s i n t h e economic, s o c i a l and c u l t u r a l f i e l d s
and r e p r e s e n t a t i v e s o f s p e c i a l i z e d agencies concerned.
k2. These views were n o t accepted b y those who t h o u g h t t h a t c e r t a i n r i g h t s ,
such as t r a d e u n i o n r i g h t s and r i g h t s r e l a t i n g t o p r i m a r y e d u c a t i o n , c o u l d be
s u b j e c t e d t o t h e human r i g h t s committee procedure and, i n t i m e , most o f t h e r i g h t s
might become e n f o r c e a b l e . A c c o r d i n g l y , a p r o v i s i o n s h o u l d be i n c l u d e d t o a f f o r d
S t a t e s t h e o p p o r t u n i t y t o accept t h e j u r i s d i c t i o n o f t h e committee i n r e s p e c t o f
certain rights. I t was f e l t t h a t such a p r o v i s i o n would i n no way i m p a i r t h e
work o f t h e s p e c i a l i z e d agencies. A S t a t e member o f a s p e c i a l i z e d agency w h i c h
had e s t a b l i s h e d a procedure c o n c e r n i n g c o m p l a i n t s i n r e s p e c t o f any o f t h e r i g h t s
l a i d down would be bound b y t h a t p r o c e d u r e . Moreover, n o t a l l t h e r i g h t s i n t h e
covenant came w i t h i n t h e p u r v i e w o f t h e s p e c i a l i z e d agencies and n o t a l l t h e S t a t e s
p a r t i e s t o t h e covenant w o u l d be members o f t h e a g e n c i e s ; i n such cases, t h e
human r i g h t s committee procedure would be t h e o n l y one which c o u l d be u t i l i z e d
for t h e e f f e c t i v e i m p l e m e n t a t i o n o f t h e d r a f t covenant on economic, s o c i a l and
cultural rights.

43. Two p r o p o s a l s , w h i c h were l a t e r w i t h d r a w n , were s u b m i t t e d . The f i r s t

follows :

"The S t a t e s P a r t i e s t o t h i s Covenant may, a t t h e t i m e o f r a t i f i c a t i o n

or a t any subsequent t i m e , i n d i c a t e i n r e s p e c t o f which r i g h t s l a i d down
i n t h e p r e s e n t Covenant t h e y agree, o r w i l l agree s u b j e c t t o r e c i p r o c i t y ,
t h a t c o m p l a i n t s o f v i o l a t i o n s l o d g e d b y another S t a t e P a r t y s h a l l be
s u b m i t t e d t o t h e procedure f o r b r i n g i n g c o m p l a i n t s b e f o r e t h e Human R i g h t s
Committee, as e s t a b l i s h e d b y a r t i c l e s 27 e t seq. o f t h e Covenant on C i v i l
and P o l i t i c a l R i g h t s . "

11/ ESC ( X V I I I ) , s u p p l . 7, para. 216.

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hk. The second p r o p o s a i ' r e a d as f o l l o w s :

"The S t a t e s P a r t i e s t o t h i s Covenant may, a t t h e t i m e o f r a t i f i c a t i o n ,

i n d i c a t e t h e r i g h t s w i t h r e s p e c t t o which t h e y undertake t o accept t h e
j u r i s d i c t i o n o f t h e Human R i g h t s Committee w i t h r e g a r d t o t h e i m p l e m e n t a t i o n
o f such r i g h t s .

" S i m i l a r l y , t h e S e c r e t a r y - G e n e r a l o f t h e U n i t e d N a t i o n s may:

(a) A t t h e r e q u e s t o f o n e - t h i r d o f t h e S t a t e s P a r t i e s t o t h e Covenant, o r ,

( h ) Upon t h e recommendation o f t h e Commission on Human R i g h t s , approved

t h e Economic and S o c i a l C o u n c i l , convene a conference o r conferences
o f t h e S t a t e s P a r t i e s t o t h i s Covenant t o determine t h e p o s s i b i l i t y o f
a d a p t i n g t h e procedures p r o v i d e d i n a r t i c l e 27 and subsequent a r t i c l e s
o f t h e Covenant on C i v i l and P o l i t i c a l R i g h t s t o t h e p r o v i s i o n s o f t h e
Covenant on Economic, S o c i a l and C u l t u r a l R i g h t s . "

45. I t was suggested t h a t t h e second p r o p o s a l s h o u l d p r o v i d e f o r t h e acceptance

o f j u r i s d i c t i o n o f t h e committee b y t h e S t a t e s p a r t i e s s u b j e c t t o r e c i p r o c i t y ,
and t h a t t h e conference envisaged i n sub-paragraph ( a ) s h o u l d c a l l e d a t t h e
r e q u e s t o f o n e - h a l f o f t h e S t a t e s p a r t i e s t o t h e covenant. The o p i n i o n was a l s o
expressed t h a t t h e two paragraphs o f t h i s p r o p o s a l were c o n t r a d i c t o r y . I t was
p o i n t e d o u t t h a t conferences might come t o t h e c o n c l u s i o n t h a t i t was n o t p o s s i b l e
t o adapt t h e procedures i n which case t h e r e c o g n i t i o n o f t h e j u r i s d i c t i o n o f t h e
committee b y S t a t e s a t t h e t i m e o f r a t i f i c a t i o n would have no v a l u e . Another
view was t h a t t h e p r o v i s i o n s r e l a t i n g t o conferences were u n r e a l i s t i c s i n c e a
conference c o u l d be c a l l e d b y a m a j o r i t y o f t h e Economic and S o c i a l C o u n c i l even
w i t h o u t t h e consent o f o n e - t h i r d o f t h e S t a t e s P a r t i e s .

12/ I b i d . , para. 218.

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DOCUMENTATION

Organ and Records o f

session discussion Other documents

CHR ( V I I ) E/CN.4/SR.211, 212, E/CN.4/637; ESC ( X I I I ) , suppl.9, p a r a . 66,

2k9, 251 and annex I I
ESC ( X I I I ) PI. 523rd, 525th mtgs. /2057/Add.2
GA ( V I ) 3rd Com., 360th-371st, Annexes, a . i . 29, A/2112, para. 35
388th, 389th and 393rd
mtgs.
CHR ( V I I I ) - E/CN.4/530/Add.1, paras. 8-9, 654/Add.2,
655/Add.2 a n d 4
CHR ( I X ) E/CN.SR.3^3, 344, 345 ESC ( X V I ) , suppl.8, para. 28
GA ( V I I I ) 3rd Com. , 505th mtg.
CHR ( X ) E/CN.4/SR.431, 2 , 433 E/CN.4/692/Add.2, L.315, 339, 339/Rev.l,
388; ESC ( X V I I I ) , suppl.7, paras. 215-
225
GA ( I X ) 3rd Com., 564th, 568th Annexes, a . i . 58, A/2808, p a r a . 32
mtgs.
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PETITIONS PROCEDURE CONCERNING ECONOMIC, SOCIAL

AND CULTURAL RIGHTS 13/

46. A d r a f t r e s o l u t i o n (/./L.372) w h i c h t h e G e n e r a l Assembly t r a n s m i t t e d t o

the Commission on Human R i g h t s b y r e s o l u t i o n 737 ( V T I l ) proposed t h a t t h e
G e n e r a l Assembly s h o u l d r e q u e s t t h e Commission t o d r a f t " p r o v i s i o n s r e c o g n i z i n g
t h e r i g h t o f p e t i t i o n o f e v e r y n a t u r a l p e r s o n , e v e r y d u l y c o n s t i t u t e d group o f
i n d i v i d u a l s and e v e r y r e c o g n i z e d non-governmental o r g a n i z a t i o n " , f o r i n c l u s i o n
i n t h e d r a f t i n t e r n a t i o n a l covenants on human r i g h t s i n accordance w i t h t h e
d e c i s i o n o f t h e G e n e r a l Assembly c o n t a i n e d i n i t s r e s o l u t i o n 4 2 1 F ( V ) and i n
t h e l i g h t o f t h e d i s c u s s i o n a t t h e e i g h t h s e s s i o n o f t h e Assembly. . In
r e s o l u t i o n 4 2 1 F ( V ) t h e G e n e r a l Assembly had r e q u e s t e d t h e Commission t o c o n s i d e r
p r o v i s i o n s " t o be i n s e r t e d i n t h e d r a f t Covenant o r i n s e p a r a t e p r o t o c o l s , f o r
t h e r e c e i p t and e x a m i n a t i o n o f p e t i t i o n s f r o m i n d i v i d u a l s and o r g a n i z a t i o n s w i t h
r e s p e c t t o a l l e g e d v i o l a t i o n s o f t h e Covenant".

47. A p r o p o s a l was made i n t h e Commission on Human R i g h t s , b u t was w i t h d r a w n

a f t e r debate, t o i n s e r t between A r t i c l e s 18 and 19 o f t h e d r a f t covenant on
economic, s o c i a l and c u l t u r a l r i g h t s an a r t i c l e r e a d i n g as f o l l o w s :

"The Economic and S o c i a l C o u n c i l s h a l l a l s o be a u t h o r i z e d t o r e c e i v e

f r o m i n d i v i d u a l s , groups o f i n d i v i d u a l s and non-governmental o r g a n i z a t i o n s
communications r e l a t i n g t o t h e f u l f i l m e n t o f o b l i g a t i o n s under t h i s
Covenant.

"The Economic and S o c i a l C o u n c i l s h a l l t r a n s m i t such communications

t o t h e Commission on Human R i g h t s f o r s t u d y and recommendations."

48. I t was s t a t e d t h a t t h i s p r o p o s a l was s u b m i t t e d i n t h e l i g h t o f G e n e r a l Assembly

r e s o l u t i o n 737 ( V I I l ) on t h e r i g h t o f p e t i t i o n . I t was s u p p o r t e d on t h e grounds
t h a t t h e r i g h t s which were c o n f e r r e d on t h e i n d i v i d u a l i n t h e d r a f t covenants n o t
o n l y made h i m a s u b j e c t o f i n t e r n a t i o n a l l a w , b u t e n e t i t l e d h i m t o have an
o p p o r t u n i t y t o defend h i s r i g h t s b y communicating t o t h e U n i t e d N a t i o n s .

15/ F o r a d i s c u s s i o n on t h e r i g h t o f p e t i t i o n , see t h e a n n o t a t i o n on a r t i c l e 40
o f t h e d r a f t covenant on c i v i l and p o l i t i c a l r i g h t s , i n Chapter V I I above.
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F u r t h e r m o r e , t h e r e were precedents f o r t h e proposed p r o c e d u r e , such as

communications c o n c e r n i n g v i o l a t i o n s o f t r a d e u n i o n r i g h t s which c o u l d he sent
l4
t o t h e Economic and S o c i a l C o u n c i l b y employers' and workers' o r g a n i z a t i o n s . '

14/ E/CN.U/SR.423, E/CN.4/L.324, E/CN.4/694/Add.3, E/CN.4/702, Nos. XIV and

X V I I I , ESC ( X V I I I ) , Suppl. 7, paras. 107-9 and 227 and annex I I I and
GA ( I X ) , 3rd Com., 566th mtg., p a r a . 12, 567th, p a r a . 17, 569th, para. 25,
570th, p a r a . 20, 571st, para. 7, 572nd, p a r a . 36 and 573rd, p a r a . 17.
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CHAPTER X

FINAL CLAUSES

( P a r t V I , a r t i c l e s 51-54, o f t h e d r a f t covenant on c i v i l
and p o l i t i c a l r i g h t s , and P a r t V, a r t i c l e s 26-29, o f t h e
d r a f t covenant on economic, s o c i a l and c u l t u r a l r i g h t s )

Table o f C o n t e n t s
Paragraphs
A r t i c l e 51 d r a f t covenant on c i v i l and p o l i t i c a l r i g h t s
and a r t i c l e 26 d r a f t covenant on e c c n e n i c , s o c i a l and
c u l t u r a l r i g h t s - S i g n a t u r e and r a t i f i c a t i o n o r a c c e s s i o n . . . . . . . . 1-7
Procedure
S t a t e s e n t i t l e d t o become p a r t i e s
Entry i n t o force

A r t i c l e 52 d r a f t covenant on c i v i l .and p o l i t i c a l r i g h t s
and a r t i c l e 27 d r a f t covenant on economic, s o c i a l
and c u l t u r a l r i g h t s - F e d e r a l S t a t e a p p l i c a t i o n c l a u s e 8-12

A r t i c l e 53 d r a f t covenant on c i v i l and p o l i t i c a l r i g h t s
and a r t i c l e 28 d r a f t covenant on economic, s o c i a l a n d
c u l t u r a l r i g h t s - T e r r i t o r i a l a p p l i c a t i o n clause. 13-20

A r t i c l e 5^+ d r a f t covenant on c i v i l and p o l i t i c a l r i g h t s

and a r t i c l e 29 d r a f t covenant on' conomie,' s o c i a l ' and' ' '
c u l t u r a l r i g h t s - Amendment... 21-24

Reservations. 25-39
Admissibility or non-admissibllity
Scope o f a d m i s s i b l e r e s e r v a t i o n s
L e g a l e f f e c t t o be a t t r i b u t e d t o r e s e r v a t i o n s
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ARTICLE 51, d r a f t covenant on c i v i l and p o l i t i c a l

r i g h t s , and ARTICLE 26, d r a f t covenant on economic,
s o c i a l and c u l t u r a l r i g h t s

S i g n a t u r e and r a t i f i c a t i o n o r a c c e s s i o n

"1. T h i s covenant s h a l l he open f o r s i g n a t u r e and r a t i f i c a t i o n

o r a c c e s s i o n on b e h a l f o f any S t a t e Member o f t h e U n i t e d
N a t i o n s o r o f any non-member S t a t e t o w h i c h an i n v i t a t i o n has
been extended by t h e General Assembly.

2. R a t i f i c a t i o n o f o r a c c e s s i o n t o t h i s covenant s h a l l be
e f f e c t e d b y t h e d e p o s i t o f an i n s t r u m e n t o f r a t i f i c a t i o n o r
accession w i t h t h e Secretary-General o f t h e United Nations,
and as soon as t w e n t y S t a t e s have d e p o s i t e d such i n s t r u m e n t s ,
t h e covenant s h a l l come i n t o f o r c e among them. As r e g a r d s
any S t a t e w h i c h r a t i f i e s o r accedes t h e r e a f t e r t h e Covenant
s h a l l come i n t o f o r c e on t h e d a t e o f t h e d e p o s i t o f i t s
instrument o f r a t i f i c a t i o n o r accession.

3. The S e c r e t a r y - G e n e r a l o f t h e U n i t e d N a t i o n s s h a l l i n f o r m
a l l Members o f t h e U n i t e d N a t i o n s , and o t h e r S t a t e s w h i c h have
s i g n e d o r acceded, o f t h e d e p o s i t o f each i n s t r u m e n t o f
r a t i f i c a t i o n o r accession."

1. The t e x t o f t h i s a r t i c l e was adopted w i t h o u t p r e j u d i c e t o such c o n s e q u e n t i a l

changes, as m i g h t have t o be made i n t h e event an a r t i c l e on r e s e r v a t i o n s were
adopted.
2. D i s c u s s i o n on t h e a r t i c l e c e n t r e d m a i n l y on t h r e e q u e s t i o n s : the
p r o c e d u r e b y w h i c h S t a t e s m i g h t become p a r t i e s t o t h e covenants, t h e S t a t e s
e n t i t l e d t o become p a r t i e s t h e r e t o , and t h e number o f r a t i f i c a t i o n s o r accessions
r e q u i r e d f o r t h e e n t r y i n t o f o r c e o f t h e covenants.

Procedure

3. O r i g i n a l l y t h e t e x t p r o v i d e d f o r a c c e s s i o n o n l y , b u t i t was subsequently
m o d i f i e d t o p r o v i d e a l s o f o r s i g n a t u r e and r a t i f i c a t i o n . I t was contended t h a t
S t a t e s a t t a c h e d some importance t o t h e ceremony o f s i g n a t u r e and t h a t i t s v a l u e ,
e s p e c i a l l y i n s t i m u l a t i n g S t a t e s t o r a t i f y t h e covenants, s h o u l d n o t be o v e r l o o k e d .

1/ E S C ( X V I I I ) , s u p p l . 7, p a r a . 3H, and annex I I , s e c t i o n B.

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The a c t o f s i g n a t u r e would have c o n s i d e r a b l e w e i g h t as a m o r a l commitment w h i c h

i n t h e case o f t h e covenants w o u l d be o f g r e a t v a l u e . On t h e o t h e r hand, t h e
v i e w was expressed t h a t t h e p s y c h o l o g i c a l v a l u e o f t h e a c t o f s i g n a t u r e was
doubtful. The p r o c e s s o f acceptance o f t h e o b l i g a t i o n s o f t h e covenants s h o u l d
n o t be l e n g t h e n e d by r e q u i r i n g s i g n a t u r e b e f o r e ratification.

S t a t e s e n t i t l e d t o become p a r t i e s

k. One v i e w was t h a t t h e covenants s h o u l d be open f o r r a t i f i c a t i o n o r

a c c e s s i o n t o a l l S t a t e s , whether Members o r non-members o f t h e U n i t e d Mations.
Acceptance o f t h e covenants was n o t a p r i v i l e g e b u t an u n d e r t a k i n g w h i c h no
S t a t e s h o u l d he p r e v e n t e d f r o m assuming. I t was i n t h e i n t e r e s t o f humanity
t h a t the. r i g h t s and o b l i g a t i o n s e n u n c i a t e d i n t h e covenants s h o u l d be u n i v e r s a l l y
accepted. On t h e o t h e r hand, t h e v i e w was h e l d t h a t i t was a d v i s a b l e f o r t h e
U n i t e d N a t i o n s t o e x e r c i s e some c o n t r o l o v e r t h e s e l e c t i o n , o f non-member S t a t e s
which would be e n t i t l e d t o become p a r t i e s t o t h e covenants. The normal p r a c t i c e
was f o r t h e G e n e r a l Assembly t o e x t e n d an i n v i t a t i o n t o non-member S t a t e s and
t h e r e s h o u l d be no d e p a r t u r e from such p r o c e d u r e . There was no r e a s o n t o b e l i e v e
t h a t i n v i t a t i o n w o u l d be w i t h h e l d b y t h e General Assembly w i t h o u t good reasons.
As adopted, t h e t e x t p r o v i d e s t h a t t h e S t a t e s Members o f t h e U n i t e d N a t i o n s , as
w e l l as non-member S t a t e s t o w h i c h an i n v i t a t i o n has. been extended b y t h e
General Assembly may become p a r t i e s t o t h e covenants.

Entry i n t o force

5. Under t h e p r e s e n t a r t i c l e , t h e covenants would e n t e r i n t o f o r c e as soon as

twenty States deposited t h e i r instruments o f r a t i f i c a t i o n o r accession. The
d i s c u s s i o n revealed a divergence o f o p i n i o n on t h e q u e s t i o n as t o how many
r a t i f i c a t i o n s or accessions w e r e necessary f o r t h e e n t r y i n t o f o r c e o f t h e
covenants.. One v i e w was t h a t any number, no m a t t e r how few, s h o u l d be
sufficient. I t was contended t h a t t h e acceptance o f t h e covenants, even b y
a f e w S t a t e s , would r e p r e s e n t some p r o g r e s s . I n t h i s connexion, r e f e r e n c e was
made t o i n t e r n a t i o n a l l a b o u r c o n v e n t i o n s w h i c h came i n t o f o r c e on r a t i f i c a t i o n
by two S t a t e s .
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6. A second view was t h a t r a t i f i c a t i o n o r a c c e s s i o n b y t w o - t h i r d s o r , a t

l e a s t , a m a j o r i t y o f t h e Member S t a t e s s h o u l d be required. I t was argued t h a t
t h e covenants would have l i t t l e v a l u e o r i m p o r t a n c e b e f o r e t h e w o r l d u n l e s s t h e y
were accepted b y a l a r g e number o f Member S t a t e s . The covenants were i n s t r u m e n t s
of far-reaching s i g n i f i c a n c e and were l i n k e d c l o s e l y w i t h t h e C h a r t e r and t h e
Universal Declaration o f Human R i g h t s ; t h e y c o u l d n o t be compared t o o t h e r
i n t e r n a t i o n a l instruments. Unless l a r g e and i n f l u e n t i a l S t a t e s were p a r t i e s ,
t h e covenants would n o t become a r e a l f o r c e . I t was proposed, t h e r e f o r e , that
t h e e n t r y i n t o f o r c e o f t h e covenants s h o u l d be c o n t i n g e n t on r a t i f i c a t i o n o r
a c c e s s i o n b y a m a j o r i t y o f t h e Members o f t h e U n i t e d N a t i o n s , " i n c l u d i n g t h e
permanent members o f t h e S e c u r i t y C o u n c i l " . T h i s view met w i t h c o n s i d e r a b l e
opposition c h i e f l y on t h e grounds t h a t human r i g h t s s h o u l d n o t be l i n k e d w i t h
problems o f s e c u r i t y and t h a t t h e s o - c a l l e d r i g h t o f v e t o s h o u l d n o t a p p l y t o
t h e covenants.
7. A t h i r d view was t h a t t h e number o f r a t i f i c a t i o n s o r accessions required
s h o u l d n e i t h e r be t o o s m a l l n o r t o o l a r g e . Among t h e numbers p r o p o s e d o r
suggested were " t e n " , " t w e l v e " , " f i f t e e n " , " t w e n t y " , and " t w e n t y - f i v e " . I t
was t h o u g h t t h a t a f a i r l y l a r g e number o f r a t i f i c a t i o n s o r a c c e s s i o n s was needed
t o g i v e t h e covenants i n t e r n a t i o n a l s i g n i f i c a n c e and t o c r e a t e a body w h i c h
could guarantee e f f e c t i v e l y t h e r i g h t s enunciated t h e r e i n .
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DOCUMENTATION

Organ and Records o f Article

session discussion O t h e r documents number

DC ( i ) E/CN.4/AC.I/SR.II E / C N . 4 / A C . 1 / 4 , annex I , a r t . 17;

E//21, annex , a r t . 17

CHE ( i l ) E/CN. V A C . 3 / S R . 8 ; E / C N . 4 / 3 7 , 56, a r t . 21; ESC ( V l ) , 17

E/CN.4/SR.42 s u p p l . 1 , annex B, a r t . 23 21

DC ( i l ) E/CN.4/AC.I/SR.28, E/CN.4/82/Add.lO, 12; 85; 23

34 ESC ( V I l ) , s u p p l . 2, annex , a r t . 23

CHR (V) E/CN.4/SR.127-129 E/CN. 4/170, 337; ESC ( I X ) ,

s u p p l . 10, annex I , a r t . 23 23

CHR ( V I ) E / C N . V S R . 1 9 6 , 200 E/CN.4/353/Add.l, 2, 5, 8, 10; 365; 500;

502; E / C N . V L . 3 ; ESC ( X l ) , s u p p l . 5,
annex I , a r t . k2 23

ESC(XI) E/AC.7/SR.14-7 E / L . 6 8 ; E/C.2/25VAdd.l 42

GA (V) 3rd Com., 3 0 1 s t mtg. 42

CHR ( I X ) ESC ( X V I ) , s u p p l . 8, annex I E , 70

a r t . 70; E/CN.4/678

CHR (X) E/CN.4/SR.45O E / C N . 4 / L . 3 4 7 J ESC ( X V I I I ) , 70

s u p p l . 7, annex I

GA ( I X ) 3 r d . Com., 566th, 51,

576th m t g . COY.
c i v . and
pol.rts.,
and 26,
cov. on
eco.,
soc. and
cul. r t s .
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ARTICLE 52, d r a f t covenant on c i v i l and

p o l i t i c a l r i g h t s , and ARTICLE 27, d r a f t
covenant on economic, s o c i a l and c u l t u r a l
rights

Federal State a p p l i c a t i o n clause

The p r o v i s i o n s o f t h e Covenant s h a l l e x t e n d t o a l l
p a r t s o f f e d e r a l S t a t e s w i t h o u t any l i m i t a t i o n s o r
exceptions.

8. The d i s c u s s i o n on t h i s a r t i c l e t u r n e d c h i e f l y on t h e q u e s t i o n whether t h e
covenants s h o u l d i n c l u d e s p e c i a l p r o v i s i o n s designed t o meet t h e c o n s t i t u t i o n a l
problems o f f e d e r a l S t a t e s . I t was p o i n t e d o u t t h a t some f e d e r a l S t a t e s would be
faced w i t h c o n s t i t u t i o n a l d i f f i c u l t i e s i n applying the provisions o f t h e covenants
s i n c e most o f t h e m a t t e r s covered b y t h e covenants were w i t h i n t h e j u r i s d i c t i o n
o f t h e c o n s t i t u e n t u n i t s o f such S t a t e s . Under t h e c o n s t i t u t i o n s o f c e r t a i n
f e d e r a l S t a t e s t h e f e d e r a l government c o u l d n o t , b y i t s a c t i o n , b i n d t h e
c o n s t i t u e n t u n i t s o f t h e f e d e r a t i o n i n m a t t e r s w h i c h came w i t h i n t h e i r
jurisdiction. I t was t h e r e f o r e contended t h a t i t would be i m p o s s i b l e f o r
c e r t a i n f e d e r a l S t a t e s t o become p a r t i e s t o t h e covenants unless a s u i t a b l e
2/
f e d e r a l c l a u s e was a d o p t e d . V a r i o u s t e x t s o f a f e d e r a l c l a u s e were p r o p o s e d .
In substance t h e c l a u s e would p r o v i d e t h a t as r e g a r d s p r o v i s i o n s o f t h e covenant
which r e l a t e d t o matters w i t h i n t h e j u r i s d i c t i o n o f t h e f e d e r a l a u t h o r i t y , t h e
f e d e r a l S t a t e would be bound t o t h e same e x t e n t as n o n - f e d e r a l S t a t e s ; and as
r e g a r d s those r e l a t i n g t o m a t t e r s w h i c h were w i t h i n t h e j u r i s d i c t i o n o f t h e
c o n s t i t u e n t u n i t s o f t h e f e d e r a t i o n t h e f e d e r a l government would b r i n g such
provisions w i t h f a v o u r a b l e recommendations t o t h e a t t e n t i o n o f t h e c o n s t i t u e n t
units.

2/ //37; 5o; 85; ESC ( X I ) , Suppl. 5, annex I ; ESC ( X V l ) , Suppl.8,

annex I I , s e c t i o n B; f o r p r o p o s a l s u b m i t t e d d u r i n g t h e f i r s t r e a d i n g o f
t h e d r a f t covenant see GA ( I X ) , annexes a . i . 58, /./L.421.
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9. On t h e o t h e r hand, i t was m a i n t a i n e d t h a t t h e i n c l u s i o n o f a f e d e r a l clause

was n o t necessary s i n c e f e d e r a l S t a t e s c o u l d always secure t h e agreement o f t h e i r
c o n s t i t u e n t u n i t s b e f o r e s i g n i n g o r r a t i f y i n g t h e covenants. Such a c l a u s e would
be a t v a r i a n c e w i t h b o t h t h e o r y and p r a c t i c e i n t h e m a t t e r o f a c c e s s i o n t o
i n t e r n a t i o n a l agreements. H i t h e r t o , f e d e r a l S t a t e s had been r e s p o n s i b l e i n
r e s p e c t o f t h e i r t e r r i t o r i e s as a whole f o r i n t e r n a t i o n a l o b l i g a t i o n s w h i c h t h e y
assumed. I t was a l s o p o i n t e d o u t t h a t t h e c l a u s e w o u l d be c o n t r a r y t o t h e
s p i r i t o f t h e C h a r t e r and t h e U n i v e r s a l D e c l a r a t i o n o f Human R i g h t s which
r e c o g n i z e d t h e p r i n c i p l e o f t h e u n i v e r s a l i t y o f human r i g h t s . Moreover, t h e
i n c l u s i o n o f a f e d e r a l c l a u s e w o u l d r e s u l t i n i n e q u a l i t y between f e d e r a l and non
f e d e r a l S t a t e s as r e g a r d s t h e o b l i g a t i o n s w h i c h t h e y w o u l d assume under t h e
covenants. F e d e r a l S t a t e s would be p l a c e d i n a p r i v i l e g e d p o s i t i o n and would
assume fewer and l e s s c l e a r - c u t o b l i g a t i o n s t h a n u n i t a r y S t a t e s . Draft articles
p r o v i d i n g f o r t h e e x t e n s i o n o f t h e a p p l i c a t i o n o f t h e covenants t o a l l p a r t s o f
3/
f e d e r a l S t a t e s were p r o p o s e d .
10. I n r e p l y i t was contended t h a t f e d e r a l S t a t e s were n o t t r y i n g t o g a i n any
advantage i n s e e k i n g t h e i n c l u s i o n o f a f e d e r a l c l a u s e ; t h e i r s o l e purpose was
t o overcome r e a l d i f f i c u l t i e s . W i t h a view t o s a f e g u a r d i n g t h e p r i n c i p l e o f
e q u a l i t y o f t h e c o n t r a c t i n g p a r t i e s , i t was proposed' t h a t t h e c l a u s e should
i n c l u d e t h e p r o v i s o t h a t "a c o n t r a c t i n g S t a t e s h a l l n o t be e n t i t l e d t o a v a i l
i t s e l f o f t h e p r e s e n t Covenant a g a i n s t o t h e r c o n t r a c t i n g S t a t e s except t o t h e
e x t e n t t h a t i t i s bound b y t h e Covenant". I n o r d e r t h a t S t a t e s p a r t i e s w o u l d be
a p p r i s e d o f t h e developments i n t h e c o n s t i t u e n t u n i t s o f a f e d e r a t i o n , i t was
proposed^to add a p r o v i s i o n b y w h i c h t h e f e d e r a l government w o u l d n o t i f y t h e
S e c r e t a r y - G e n e r a l , f o r communication t o S t a t e s p a r t i e s , o f t h e l e g i s l a t i v e o r
o t h e r measures w h i c h t h e c o n s t i t u e n t u n i t s o f t h e f e d e r a t i o n might
s u b s e q u e n t l y t a k e t o implement t h e covenants.
11. A s u g g e s t i o n was made t h a t t h e c o n s t i t u t i o n a l d i f f i c u l t i e s o f f e d e r a l S t a t e s
m i g h t be overcome i n a more s u i t a b l e manner b y t h e use o f r e s e r v a t i o n s . A draft

3/ E/CN.V /Add,10/Rev.l;
82
.^-
kj E/CN.VL.344.

5/ E/CN.k/.346
A/2929
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a r t i c l e was proposed^which would a l l o w a f e d e r a l S t a t e t o make a r e s e r v a t i o n i n

r e s p e c t o f any p a r t i c u l a r p r o v i s i o n o f t h e covenant t o t h e e x t e n t t h a t t h e
a p p l i c a t i o n o f such p r o v i s i o n , under t h e c o n s t i t u t i o n o f t h e f e d e r a l S t a t e , fell
w i t h i n the exclusive j u r i s d i c t i o n of the constituent units of the federation. I t
was e x p l a i n e d t h a t l i m i t a t i o n s o f t h e o b l i g a t i o n s o f f e d e r a l S t a t e s under t h e
covenant w o u l d r e s u l t o n l y f r o m express r e s e r v a t i o n s i n respect o f p a r t i c u l a r
p r o v i s i o n s , n o t from t h e automatic a p p l i c a t i o n of a f e d e r a l clause.
12. The t e x t adopted p r o v i d e s f o r t h e e x t e n s i o n o f t h e p r o v i s i o n s o f each
covenant t o a l l p a r t s o f f e d e r a l S t a t e s w i t h o u t a n y l i m i t a t i o n s o r e x c e p t i o n s .
The view was expressed t h a t t h i s t e x t was i n a c c o r d w i t h t h e p r i n c i p l e s and
p r a c t i c e o f i n t e r n a t i o n a l law and guaranteed u n i v e r s a l i t y i n t h e a p p l i c a t i o n o f
the covenants. On t h e o t h e r hand, i t was contended t h a t i t i m p l i e d , complete l a c k
o f u n d e r s t a n d i n g o f t h e s p e c i a l p o s i t i o n o f f e d e r a l S t a t e s and was a t v a r i a n c e w i t h
t h e d e c i s i o n t a k e n b y t h e General Assembly i n r e s o l u t i o n 421 C ( v ) . Not o n l y d i d
t h e a r t i c l e i n q u e s t i o n p r e v e n t I n c l u s i o n o f a f e d e r a l c l a u s e i n t h e covenants, b u t
i t d e n i e d S t a t e s w i t h f e d e r a l c o n s t i t u t i o n s t h e p o s s i b i l i t y o f making reservations
t o meet t h e i r p a r t i c u l a r c o n s t i t u t i o n a l d i f f i c u l t i e s .

6/ ESC ( X V I ) , Suppl. 8, annex I I , s e c t i o n B, No.2.

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DOCUMENTATION
Organ and Records o f Artrle
Session discussion Other documents numher

BE ( I I ) E/CN.VAC.3/SR.3 E/CN.4/3T; 56; ESC ( V I ) , suppl.1,

annex B, a r t . 24
DC ( I I ) /CN.k/AC.l/SR.34,k2 E/CN.4/82/Add.7, 10; 85; 95; annex 3;
E/CN.4/AC.1/42

cm ( i n ) ESC ( V I l ) , s u p p l . 2, annex B, a r t . 2 4 24

CHR (V) E/CN.4/SR.129 E/CN.4/225; 2 4 0 , 296; 320; 328; 24

ESC ( I X ) , s u p p l . 10, annex I , a r t . 24
CHR ( V I ) E/CN.VSR.197 E/CN.4/353/Add.l, 2, 3, 6, 8, 10; 365, 24
437; ESC ( X I ) , s u p p l . 5, annex I ,
art.43

ESC (XI) 377th-379th mtgs.; E/1721 and c o r r . l ; ESC ( X l ) , annexes 43

E/AC.7/SR.IV7, 148, a.i.19, E/1808; E/L.68; E/c.2/254/Add-l
151-153; E/C.2/SR.83
GA (V) 317th mtg.; 3rd Com., GA ( V ) , annexes a . i . 63, A/1384; 1559? - '43
292nd, 294th, 298th, /./534, A/C.3/L.76, 86, 89/Rev.l,
303rd, 308th, 309th 96; A/C.3/535
mtgs.

ESC ( X I I ) 438th and 439th mtgs. ESC ( X I I ) , annexes a . i . 12, E/188O 43

CHR ( V I I ) E/CN.4/515/Add.4, 8, 13, 14, 16; . 71
ESC ( X I I I ) , s u p p l . 9, annex V I
ESC (XIII) E/2059 and Add.4
GA ( V I ) 3rd Com., 360th- GA ( V I ) , annexes a . i . 29, A/C.3/559 71
363rd, 366th, 368th
mtgs.
CHR (VIII) E/CN.4/651, 660 71

CHR ( I X ) E/CN.4/684/Add.3, 6; ESC ( X V l ) , 71

suppl.8, annex I I , s e c t i o n

GA (VIII) 3rd Com., 503rd- C-A ( V I I I ) , annexes a . i . 12, /'./., 71

509th, 5l8th-521st 374,-387, 388, 389
mtgs.
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DOCUMENTATION (Cont'd)

Organ and Records o f Article

session discussion Other documents number

CRR (X) E/CN.4/SR.437-441, E/CN.4/694, Add.3, 6; 696; 702, p.46; 71

450 L . 3 4 0 and c o r r . l , 343, 3kk, 358, 378;
ESC ( X Y I I I ) , s u p p l . 7 , p a r a s . 2 4 3 ,
244-261; annex I , s e c t i o n A, a r t . 27
and S e c t i o n B, a r t . 52

GA ( I X ) 3rd Com., 562nd- GA ( I X ) , annexes a . i . 58, A / C . 3 / L . 4 2 1 52,COV.

564th, 566th-571st on c i v .
mtgs. and p o l .
rts.,
and 27,
cov. on
eco.,
soc. and
cul.rts.
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ARTICLE 53, d r a f t covenant on

c i v i l and p o l i t i c a l r i g h t s , and
ARTICLE 28, d r a f t covenant on
economic, s o c i a l and c u l t u r a l
rights

T e r r i t o r i a l a p p l i c a t i o n clause

The p r o v i s i o n s o f t h e p r e s e n t covenant s h a l l
e x t e n d t o o r he a p p l i c a b l e e q u a l l y t o a s i g n a t o r y m e t r o p o l i t a n
S t a t e and t o a l l t h e t e r r i t o r i e s , he t h e y Non-Self-Governing,
Trust, or c o l o n i a l t e r r i t o r i e s , which are being administered
or governed b y such m e t r o p o l i t a n S t a t e .

13. The debate on t h i s a r t i c l e has b r o u g h t i n t o sharp f o c u s two main opposing

views on t h e q u e s t i o n o f t h e a p p l i c a b i l i t y o f t h e covenants t o Non-Gelf-Governing,
T r u s t o r c o l o n i a l t e r r i t o r i e s a d m i n i s t e r e d o r governed b y S t a t e s w h i c h m i g h t
become p a r t i e s t o t h e covenants.
14. One v i e w was t h a t t h e covenants s h o u l d n o t be made t o a p p l y a u t o m a t i c a l l y
t o such t e r r i t o r i e s . A c l a u s e s h o u l d be i n s e r t e d w h i c h would make i t p o s s i b l e
f o r a S t a t e p a r t y t o e i t h e r covenant t o determine t o what e x t e n t t h e covenant
7/
s h o u l d a p p l y t o i t s dependent t e r r i t o r i e s . V a r i o u s p r o p o s a l s ' were s u b m i t t e d
w h i c h w o u l d p e r m i t a m e t r o p o l i t a n S t a t e , upon i t s becoming a p a r t y t o e i t h e r
covenant, t o d e c l a r e t o w h i c h o f i t s t e r r i t o r i e s t h e p r o v i s i o n s o f t h e covenant
would o r would n o t e x t e n d . I t was argued t h a t a c l a u s e o f t h i s n a t u r e would
enable m e t r o p o l i t a n S t a t e s t o meet c o n s t i t u t i o n a l and o t h e r d i f f i c u l t i e s w h i c h
would o t h e r w i s e p r e v e n t them f r o m o r d e l a y t h e i r becoming p a r t i e s t o t h e covenant.
I t was n e i t h e r r e a l i s t i c n o r reasonable t o expect a m e t r o p o l i t a n S t a t e i m m e d i a t e l y
t o a p p l y a l l t h e p r o v i s i o n s o f t h e covenant t o Non-Self-Governing, T r u s t o r
colonial territories. Some o f t h o s e t e r r i t o r i e s a l r e a d y e n j o y e d a c e r t a i n amount
of autonomy, and many o f t h e p r o v i s i o n s o f t h e covenants r e l a t e d t o m a t t e r s w h i c h
came w i t h i n t h e p u r v i e w o f t h e i r r e s p e c t i v e governments. I n t h e absence o f a
7/ //95, 170, 242; ESC ( X l ) , Suppl. 5, annex I .
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s u i t a b l e t e r r i t o r i a l a p p l i c a t i o n c l a u s e i n t h e covenant, c o n s u l t a t i o n w i t h the
t e r r i t o r i e s on t h e q u e s t i o n o f t h e i r acceptance o f t h e o b l i g a t i o n s imposed b y
t h e covenant, p a r t i c u l a r l y i n r e s p e c t o f m a t t e r s w i t h i n t h e i r domestic competence,
would be necessary b e f o r e m e t r o p o l i t a n S t a t e s c o u l d accede on t h e i r b e h a l f .
T h i s m i g h t d e l a y f o r a c o n s i d e r a b l e t i m e , o r even i n d e f i n i t e l y , t h e adherence
o f a d m i n i s t e r i n g Powers t o t h e covenant.
15. I t was f u r t h e r p o i n t e d o u t t h a t a l l t h e t e r r i t o r i e s a d m i n i s t e r e d o r governed
b y m e t r o p o l i t a n S t a t e s had n o t reached t h e same stage o f development, c o n s e q u e n t l y
t h e p r o v i s i o n s o f t h e covenant c o u l d n o t be made e f f e c t i v e i m m e d i a t e l y i n a l l those
territories. To a p p l y p r o v i s i o n s o f t h e covenant p r e m a t u r e l y t o p e o p l e s who had
n o t y e t reached a s u f f i c i e n t l y advanced stage o f development would be u n d e s i r a b l e .
Reference was a l s o made t o Chapters X I and X I I o f t h e C h a r t e r under w h i c h , i t
was c l a i m e d , t h e a d m i n i s t e r i n g Powers had t o t a k e i n t o account t h e p a r t i c u l a r
c i r c u m s t a n c e s o f each t e r r i t o r y and i t s peoples and t h e i r v a r y i n g stage o f
development. Hence, a c l a u s e s h o u l d be adopted w h i c h w o u l d make i t p o s s i b l e f o r
a m e t r o p o l i t a n S t a t e t o a p p l y t h e covenants i m m e d i a t e l y t o i t s territories
whenever t h a t was p r a c t i c a b l e and t o a p p l y them b y degress i n o t h e r cases.
16. I t was emphasized t h a t such a c l a u s e was i n no way d e s i g n e d t o p r e v e n t
a p p l i c a t i o n o f t h e p r o v i s i o n s o f t h e covenant t o dependent t e r r i t o r i e s b u t was,
on t h e c o n t r a r y , i n t e n d e d t o f a c i l i t a t e such a p p l i c a t i o n . The c l a u s e would
moreover p r o v i d e t h a t t h e S t a t e s concerned would u n d e r t a k e , w i t h r e s p e c t t o those
t e r r i t o r i e s t o w h i c h t h e covenant d i d n o t a p p l y , t o t a k e as soon as p o s s i b l e t h e
necessary s t e p s t o e x t e n d i t s a p p l i c a t i o n t o such t e r r i t o r i e s .
17. On t h e o t h e r hand, i t was a s s e r t e d t h a t t h e p r o v i s i o n s o f t h e covenant should,
be a p p l i c a b l e e q u a l l y t o a m e t r o p o l i t a n S t a t e as w e l l as t o a l l t h e t e r r i t o r i e s
a d m i n i s t e r e d o r governed b y i t . I t s h o u l d n o t be l e f t t o t h e d i s c r e t i o n o f t h e
m e t r o p o l i t a n S t a t e t o d e c i d e whether o r n o t t h e covenants s h o u l d a p p l y t o i t s
dependent t e r r i t o r i e s . The b e n e f i t s o f t h e covenants s h o u l d be extended t o human
b e i n g s everywhere. I t was r e c a l l e d t h a t a c c o r d i n g t o t h e U n i v e r s a l D e c l a r a t i o n o f
Human R i g h t s "no d i s t i n c t i o n s h a l l be made on t h e b a s i s o f t h e p o l i t i c a l ,
j u r i s d i c t i o n a l or i n t e r n a t i o n a l s t a t u s of t h e t e r r i t o r y or t e r r i t o r i e s t o which
a person b e l o n g s , whether t h i s t e r r i t o r y be an independent, T r u s t , Hon-SeIf-
Governing t e r r i t o r y , o r under any o t h e r l i m i t a t i o n o f s o v e r e i g n t y " . The
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a d m i n i s t e r i n g Powers cannot p l e a d c o n s t i t u t i o n a l d i f f i c u l t i e s as a ground f o r

opposing t h e a u t o m a t i c e x t e n s i o n o f t h e p r o v i s i o n s o f t h e covenants t o
t e r r i t o r i e s a d m i n i s t e r e d or governed b y them. I t was n o t a q u e s t i o n o f i m p o s i n g
o b l i g a t i o n s on a t e r r i t o r y w i t h o u t t h e p r e v i o u s consent o f i t s p e o p l e , b u t o f
g r a n t i n g t h e r i g h t s w h i c h were due them. What was t o be f e a r e d was n o t t h a t t h e
peoples o f t h e t e r r i t o r i e s would n o t want t o a c c e p t t h e covenants b u t t h a t t h e
a d m i n i s t e r i n g Powers would r e f u s e t o a p p l y them t o those t e r r i t o r i e s .
18. N e i t h e r c o u l d i t be argued t h a t t h e covenants c o u l d n o t be made t o a p p l y
t o a l l t h e t e r r i t o r i e s i m m e d i a t e l y s i n c e some o f them were n o t s u f f i c i e n t l y
advanced i n t h e i r stage o f development. The a p p l i c a t i o n o f t h e covenants t o
such t e r r i t o r i e s would a s s i s t t h e i r development. Moreover, Chapters X I and X I I
of t h e C h a r t e r p l a c e d on t h e a d m i n i s t e r i n g Powers t h e r e s p o n s i b i l i t y o f p r o m o t i n g
the development o f t h e Non-Self-Governing and T r u s t T e r r i t o r i e s , and i n
p a r t i c u l a r A r t i c l e 76 made i t one o f t h e o b j e c t i v e s o f t h e t r u s t e e s h i p system
" t o encourage r e s p e c t f o r human r i g h t s and f u n d a m e n t a l freedoms f o r a l l w i t h o u t
d i s t i n c t i o n as t o r a c e , sex, language o r r e l i g i o n " . The g u a r a n t e e i n g o f human
r i g h t s i n Non-SeIf-Governing and T r u s t T e r r i t o r i e s was one o f t h e p r e r e q u i s i t e s
f o r t h e development o f those t e r r i t o r i e s towards f u l l s e l f - g o v e r n m e n t and
independence.
19. The t e x t o f t h e p r e s e n t a r t i c l e was d r a f t e d b y t h e General Assembly a t i t s
8/
f i f t h s e s s i o n f o r i n c l u s i o n i n t h e d r a f t i n t e r n a t i o n a l covenant.' The Economic
and S o c i a l - C o u n c i l , i n r e s o l u t i o n 303 I ( X l ) , had asked t h e General Assembly
f o r a p o l i c y d e c i s i o n on t h e q u e s t i o n o f t h e d e s i r a b i l i t y o f i n c l u d i n g a s p e c i a l
a r t i c l e on t h e a p p l i c a t i o n o f t h e covenant t o Non-Self-Governing and T r u s t
9/
T e r r i t o r i e s , as t h e Commission was unable t o r e a c h a d e c i s i o n on t h e m a t t e r . '
20. I t may be n o t e d t h a t i n connexion w i t h t h e c o n s i d e r a t i o n o f t h e q u e s t i o n o f
r e s e r v a t i o n s , a d r a f t a r t i c l e ^ was proposed w h i c h would a l l o w r e s e r v a t i o n s
8/ GA 422 (V) o f 4 December 1950. I t may be n o t e d t h a t a r t i c l e IX o f t h e
Convention on t h e I n t e r n a t i o n a l R i g h t o f C o r r e c t i o n , w h i c h was adopted b y t h e
General Assembly i n r e s o l u t i o n 630 ( V I l ) , reads as f o l l o w s : "The p r o v i s i o n s
o f t h e p r e s e n t Convention s h a l l e x t e n t t o o r be a p p l i c a b l e e q u a l l y t o a
c o n t r a c t i n g m e t r o p o l i t a n S t a t e and t o a l l t h e t e r r i t o r i e s , be t h e y Non-Self-
Governing, T r u s t o r C o l o n i a l t e r r i t o r i e s , w h i c h a r e b e i n g a d m i n i s t e r e d o r
governed b y such m e t r o p o l i t a n S t a t e . "
9/ E/CN.4/SR.197.
10/ E/CN.4/L.348*
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t o he made t o t h e t e r r i t o r i a l a p p l i c a t i o n c l a u s e . Under t h e proposed t e x t , a

metropolitan S t a t e c o u l d make a d e c l a r a t i o n a t t h e t i m e o f s i g n a t u r e , ratification
or a c c e s s i o n t h a t i t d i d n o t assume any o h l i g a t i o n i n r e s p e c t o f a l l o r any o f i t s
Non-Self-Governing, T r u s t o r c o l o n i a l t e r r i t o r i e s , and t h e covenant w o u l d n o t
a p p l y t o any o f t h e t e r r i t o r i e s named i n t h e d e c l a r a t i o n . The r e s e r v i n g State
m i g h t s u b s e q u e n t l y e x t e n d t h e a p p l i c a t i o n o f t h e covenant t o a l l o r any o f such
t e r r i t o r i e s by g i v i n g notice t o the Secretary-General. I n the discussion^
i t was p o i n t e d o u t t h a t t h e t e x t o f t h e proposed a r t i c l e was c o n t r a r y t o t h e
provisions o f t h e t e r r i t o r i a l a p p l i c a t i o n c l a u s e w h i c h had been adopted b y t h e
General Assembly. On t h e o t h e r hand, i t was m a i n t a i n e d t h a t t h e General Assembly
i n a d o p t i n g t h e t e r r i t o r i a l a p p l i c a t i o n c l a u s e had n o t e x c l u d e d t h e p o s s i b i l i t y
of p e r m i t t i n g r e s e r v a t i o n s to i t .

11/ E/CN.SR.342, 343, 44, 345, 348, 349.

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DOCUMENTATION

Organ and Records o f Article

session discussion Other documents number

CHR ( I I ) E/CN.4/AC3/SR.8; E/CN.4/56; ESC ( V I ) , s u p p l . 1, annex B ,

E/CN.4/SR.42 art.25

DC ( I I ) /CN. 4/AC. l/SP.3k,. E/CN. 4/82/Rev. 1 ; Add. 10/Rev. 1; 25

43 E / C N . V A C . 1/19; 42; ESC (VII),
s u p p l . 2, annex B , a r t . 25

CHR ( V ) E/CN.4/SR.129 E/CN.4/17O; 242, 271, 296; ESC ( I V ) , 25

s u p p l . 10, annex I , a r t . 25

CHR ( V I ) E/CN.4/SR.197 E/CN.4/353/Add.l, 2, 3, 6, 8, 10; 25

365; 494; ESC ( X I ) , s u p p l . 5, annex I ,
a r t . 44

ESC ( X I ) 377th, 378th, E/1721 and c o r r . l ; I8O8; E/L.68; 44

379th, mtgs; E/c.2/254/Add.l
E/AC.7/SR.152-154;
E/C.2/SR.83
GA ( V ) 3l6th, 317th mtg!s;GA ( V ) , annexes a . i . 63, A/1384, 1559, 44
3rd Com. 292nd, /./534, A/C.3/L.7l/Rev.l, 76, 78;
294th, 295th, /./55
296th, 298th
302nd, 308th,
3l8th mtgs.

ESC ( X I I ) 438th-44oth mtgs

CHR ( V I I ) E/CN.4/SR.242, E/CN.4/515/Add.4, 8, 13, 14, 16; , 44
251 ESC ( X I I I ) , suppl.'9, annex I , a r t . 7 2 ,
and annex I I

ESC (XIII) E/2059/Add.2, 4

CHR ( I X ) E/CN. 4/SR.391 E/CN.4/678; ESC ( X V I ) , s u p p l . 8, 72

annex I , a r t . 72

CHR (X) E/CN.4/SR.450 E/CN.4/694/Add.2, 6; 702, p.46; 72

ESC ( X V I I I ) , suppl.7, annex I

GA ( I X ) 3rd Com., 562nd, 53,cov.

568th-573rd, on c i v .
575th, 576th, and p o l .
578th mtgs. rts.and
26,cov.
on eco.,
soc.and
cul r t s

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ARTICLE $k, d r a f t covenant on c i v i l and

p o l i t i c a l r i g h t s , and ARTICLE 29, d r a f t
covenant on economic, s o c i a l and c u l t u r a l
rights

Amendment

1. Any S t a t e P a r t y t o t h e Covenant may propose an amendment

and f i l e i t w i t h t h e S e c r e t a r y - G e n e r a l o f t h e U n i t e d N a t i o n s .
The S e c r e t a r y - G e n e r a l s h a l l thereupon communicate t h e proposed
amendments t o t h e S t a t e s P a r t i e s t o t h e Covenant w i t h a
r e q u e s t t h a t t h e y n o t i f y him whether t h e y f a v o u r a conference
of S t a t e s P a r t i e s f o r t h e purpose o f c o n s i d e r i n g and v o t i n g
upon t h e p r o p o s a l . I n t h e event t h a t a t l e a s t o n e - t h i r d o f
t h e S t a t e s f a v o u r s such a conference t h e S e c r e t a r y - G e n e r a l
s h a l l convene t h e conference under t h e auspices o f t h e
U n i t e d N a t i o n s . Any amendment adopted b y a m a j o r i t y o f S t a t e s
p r e s e n t and v o t i n g a t t h e conference s h a l l be s u b m i t t e d t o
t h e General Assembly o f t h e U n i t e d N a t i o n s f o r a p p r o v a l .

2. Such amendments s h a l l come i n t o f o r c e when t h e y have been

approved b y t h e General Assembly and accepted b y a t w o - t h i r d s
m a j o r i t y o f t h e S t a t e s P a r t i e s t o t h e Covenant i n accordance
w i t h t h e i r r e s p e c t i v e c o n s t i t u t i o n a l processes.

3. When such amendments come i n t o f o r c e t h e y s h a l l be b i n d i n g

on those P a r t i e s w h i c h have accepted them, o t h e r P a r t i e s
b e i n g s t i l l bound b y t h e p r o v i s i o n s o f t h e Covenant and any
e a r l i e r amendment w h i c h t h e y have accepted.

21. T h i s a r t i c l e p r o v i d e s t h a t an amendment may be proposed b y a n y S t a t e p a r t y

12/
to e i t h e r covenant. There was some d i s c u s s i o n on t h e q u e s t i o n whether i t
s h o u l d n o t be open t o any Member o f t h e U n i t e d N a t i o n s , a l t h o u g h n o t a p a r t y
to t h e covenant, t o propose amendments t h e r e t o . I t was contended, on t h e one
hand, t h a t a p r o s p e c t i v e p a r t y s h o u l d n o t be p r e c l u d e d f r o m s u b m i t t i n g
amendments. A Member S t a t e w h i c h was n o t a p a r t y t o t h e covenant might be
w i l l i n g t o adhere t o i t i f an amendment i t proposed were accepted. On t h e o t h e r
hand, i t was m a i n t a i n e d t h a t o n l y S t a t e s p a r t i e s should be g i v e n t h e r i g h t t o
i n i t i a t e amendments; n o n - p a r t i e s w h i c h m i g h t be h o s t i l e t o t h e covenant s h o u l d
he p r e v e n t e d f r o m u n d e r m i n i n g i t s development.

12/ E/CN.VSR.130, 197; E/CN/365, page 69.

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22. There were two s c h o o l s o f t h o u g h t on t h e q u e s t i o n as t o who s h o u l d

13/
7
d e t e r m i n e whether a proposed.amendment s h o u l d he adopted o r n o t . One
s c h o o l h e l d t h e view t h a t i t was up t o t h e c o n t r a c t i n g p a r t i e s a l o n e t o
d e c i d e on changes t o he made i n t h e covenant, w h i l e t h e . o t h e r m a i n t a i n e d t h a t
t h e General Assembly s h o u l d be g i v e n c o n t r o l over amendments. I t was contended,
on one hand, t h a t t h e r e v i s i o n o f t h e covenant s h o u l d be l e f t e x c l u s i v e l y t o
t h e c o n t r a c t i n g p a r t i e s s i n c e amendments would have t o be c o n s i d e r e d on t h e
b a s i s o f a c t u a l e x p e r i e n c e g a i n e d i n t h e a p p l i c a t i o n o f t h e covenant.
Moreover, t h e i n t e r v e n t i o n o f t h e General Assembly i n t h e amending process
would c r e a t e i n e q u a l i t y between t h e S t a t e s p a r t i e s w h i c h were Members o f t h e
U n i t e d Mations and t h o s e w h i c h were non-Members, inasmuch as t h e l a t t e r would
have no o p p o r t u n i t y o f p a r t i c i p a t i n g i n t h e d i s c u s s i o n s i n t h e General
Assembly. On t h e o t h e r hand, i t was m a i n t a i n e d t h a t t h e G e n e r a l Assembly
s h o u l d have t h e r i g h t t o approve o r r e j e c t amendments t o covenants which were
drawn up under i t s a u s p i c e s and w h i c h had i t s m o r a l a u t h o r i t y . Furthermore,
t h e G e n e r a l Assembly under t h e C h a r t e r was g i v e n wide r e s p o n s i b i l i t i e s i n
t h e f i e l d o f human r i g h t s ; i t c o u l d n o t a c c e p t a l i m i t a t i o n on i t s powers.
I t was a l s o p o i n t e d o u t t h a t t h e p r o v i s i o n r e q u i r i n g a p p r o v a l o f proposed
amendments b y t h e General Assembly was i n a c c o r d w i t h c u r r e n t p r a c t i c e o f t h e
U n i t e d N a t i o n s i n t h e m a t t e r o f amendments t o m u l t i l a t e r i a l c o n v e n t i o n s
adopted under i t s a u s p i c e s . Reference was a l s o made t o s i m i l a r p r o v i s i o n s
i n i n t e r n a t i o n a l labour conventions.
23. The procedure agreed upon envisages t h e c o n s i d e r a t i o n and a d o p t i o n o f
proposed amendments b y a conference o f S t a t e s p a r t i e s t o be convened under t h e
auspices o f the U n i t e d Nations, p r o v i d e d t h a t a t l e a s t o n e - t h i r d o f the
c o n t r a c t i n g S t a t e s were i n f a v o u r o f h o l d i n g such c o n f e r e n c e . But any amendment
adopted b y t h e c o n f e r e n c e has t o be s u b m i t t e d t o t h e General Assembly f o r
approval. The amendment comes i n t o f o r c e o n l y when approved by t h e General
Assembly and accepted by a t w o - t h i r d s m a j o r i t y o f t h e S t a t e s p a r t i e s I n
accordance w i t h t h e i r r e s p e c t i v e c o n s t i t u t i o n a l processes. A p r o p o s a l was made

13/ E/CN/SR.130, 197; E/CN.h/296; 339;. L.15.

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t o ensure p a r t i c i p a t i o n b y S t a t e s p a r t i e s w h i c h were n o t members o f t h e

U n i t e d N a t i o n s i n t h e d i s c u s s i o n s i n t h e General Assembly, b u t t h e p r o p o s a l
14/
was s u b s e q u e n t l y withdrawn.
2k. Under paragraph 3 o f t h e p r e s e n t a r t i c l e , amendments which have come i n t o
f o r c e a r e b i n d i n g o n l y on t h e S t a t e s p a r t i e s - w h i c h have accepted them. A
p r o p o s a l f o r t h e d e l e t i o n o f t h i s paragraph was made, b u t a f t e r an exchange o f
15/
views t h e p r o p o s a l was w i t h d r a w n . I n s u p p o r t o f t h e p r o p o s a l i t was
p o i n t e d o u t t h a t t h e a r t i c l e a l r e a d y p r o v i d e d a n e l a b o r a t e and l e n g t h y
procedure f o r t h e c o n s i d e r a t i o n , a d o p t i o n and e n t r y i n t o f o r c e o f a n amendment.
Under t h o s e circumstances an amendment s h o u l d become b i n d i n g on a l l S t a t e s
p a r t i e s , n o t m e r e l y on t h o s e which accepted i t . I t was d o u b t f u l t h a t any
amendment l i a b l e t o p r e j u d i c e t h e i n t e r e s t s o f a S t a t e p a r t y would ever
succeed i n p a s s i n g t h r o u g h t h e t h r e e s u c c e s s i v e stages contemplated i n t h e
article. I t was a l s o p o i n t e d o u t t h a t t h e p r o p o s a l was n o t n o v e l , s i n c e i t
would n o t make t h e m a j o r i t y r u l e p r e v a i l t o a l a r g e r e x t e n t i n t h e case o f
an amendment t o t h e covenants t h a n was a l r e a d y p r o v i d e d i n t h e case o f an
amendment t o t h e U n i t e d N a t i o n s C h a r t e r . On t h e o t h e r hand, those who opposed
t h e p r o p o s a l m a i n t a i n e d t h a t i t would i n f r i n g e upon t h e s o v e r e i g n t y o f S t a t e s
a n d , i f approved, would d i s c o u r a g e many a S t a t e f r o m becoming a p a r t y t o t h e
covenants. The procedure proposed was o b j e c t i o n a b l e i n t h a t S t a t e s p a r t i e s
would be s i g n i n g a b l a n k cheque i n advance t o a c c e p t unknown amendments.

14/ E/CN.4/SR.197.
15/ ESC ( X V I ) , Suppl. 8, annex I I , s e c t i o n C; ESC ( X V I I I ) , Suppl.7,
~~ paras.317-19; E/CN.4/SR.450, 451.
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DOCUMENTATION

Organ and Records o f Article

session discussion Other documents number
DC ( I ) E/CN.VAC.I/SR.II / / . 1 , annex I , a r t . 1 8 ;
E / C N A / 2 1 , annex B , a r t . l 8

CHR ( I I ) E/CN.4/AC.3/SR.8J E/CN.V37; 56; E S C ( v i ) 18

E/CN.I+/SRA2 S u p p l . 1 , annex B , a r t . 2 6 2k

DC ( I I ) E/CN.VAC.I/SR.31I- E / C N . V A C . 1/19; E/CN.V95,

annex I I , a r t . 26 26
CHR (V) E/CN.4/SR.13O E/CN.V255; 396; 339;
ESC ( I X ) , Suppl.10, annex I ,
26
art.26
CHR (VI) E/CN.VSR.197 E/CN.V353/Add.l, 2, 3, 8, 10;
365; E / C N . V L . 1 5 ; E S C ( X I ) ,
Suppl.5, annex I , a r t . k^ 26
ESC (XI) E/L.68; E/C.2/25VAdd.l *5

CHR (VII) E/CN.V515/Add.l3 ^5

CHR (IX) E/CN.V678; ESC (XVI), Suppl.8,
annex I , a r t . 7 3 , and annex I I ,
section

CHR (X) E/CN.VSRA50, ^51 E / C N . V L . 3 5 8 , 378; ESC (XVIII), 73

Suppl.7, paras.316-321; annex I ,
s e c t i o n A, art.29 and s e c t i o n B ,
a r t . 5I1
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RESERVATIONS

25. Various proposals c o n c e r n i n g a d m i s s i b i l i t y o f r e s e r v a t i o n s were considered

by t h e Commission a t i t s f i f t h and s i x t h s e s s i o n s , b u t i t d i d n o t adopt any
text. The General Assembly a t i t s s i x t h s e s s i o n r e q u e s t e d t h e Commission, i n
r e s o l u t i o n 5^6 ( V l ) , t o prepare f o r i n c l u s i o n i n t h e two d r a f t covenants
"one o r more clauses r e l a t i n g t o t h e a d m i s s i b i l i t y o r n o n - a d m i s s i b i l i t y o f
r e s e r v a t i o n s and t o t h e e f f e c t t o be a t t r i b u t e d t o them". The Commission
16/
c o n s i d e r e d p r o p o s e d t e x t s o f a r e s e r v a t i o n s clause a t i t s t e n t h session.
One p r o p o s a l would a l l o w no r e s e r v a t i o n s t o be made t o t h e covenant. Another
p r o p o s a l would a l l o w r e s e r v a t i o n s t o be made o n l y t o P a r t I I I o f t h e d r a f t
covenant on c i v i l and p o l i t i c a l r i g h t s , s u b j e c t t o t h e consent o f t w o - t h i r d s
of t h e S t a t e s p a r t i e s . A third p r o p o s a l would p e r m i t r e s e r v a t i o n s t o be made
p r o v i d e d t h e y were c o m p a t i b l e w i t h t h e o b j e c t and purpose o f t h e covenant.
A p r o p o s a l p r o v i d i n g f o r r e s e r v a t i o n s t o t h e t e r r i t o r i a l clause was a l s o
17/
submitted.- Except as r e g a r d s t h e last-named p r o p o s a l , t h e d i s c u s s i o n i n
t h e Commission c e n t e r e d on t h e q u e s t i o n o f r e s e r v a t i o n s t o t h e d r a f t covenant
on c i v i l and p o l i t i c a l rights. The q u e s t i o n o f r e s e r v a t i o n s t o t h e o t h e r
d r a f t covenant was n o t c o n s i d e r e d . The Commission was unable t o agree on
a t e x t and decided t o t r a n s m i t t o t h e G e n e r a l Assembly, t h r o u g h t h e C o u n c i l ,
t h e p r o p o s a l s and amendments b e f o r e i t , w i t h t h e e x c e p t i o n o f t h e p r o p o s a l
concerning r e s e r v a t i o n s t o the t e r r i t o r i a l clause.
26. The main i s s u e s r a i s e d i n t h e d i s c u s s i o n on t h e q u e s t i o n o f r e s e r v a t i o n s
related to: (a) the a d m i s s i b i l i t y or n o n - a d m i s s i b i l i t y o f reservations;
(b) t h e scope o f a d m i s s i b l e r e s e r v a t i o n s ; and ( c ) t h e l e g a l e f f e c t t o be
attributed t o reservations.
A d m i s s i b i l i t y or non-admissibility

27. One v i e w was t h a t no r e s e r v a t i o n s o f any k i n d s h o u l d be a l l o w e d . I f

r e s e r v a t i o n s were a d m i t t e d , t h e covenants would cease t o be u n i v e r s a l i n
character. Reservations might a l s o open t h e way f o r e v a s i o n o f r e s p o n s i b i l i t y .

16/ ESC ( X V I I I ) , Suppl.7, paras.266-305.

17/ T h i s p r o p o s a l i s d e a l t w i t h under t h e t e r r i t o r i a l a p p l i c a t i o n c l a u s e .
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I t was u n a c c e p t a b l e t h a t t h e U n i t e d N a t i o n s i t s e l f , a f t e r p r o c l a i m i n g t h a t
human r i g h t s were i n h e r e n t i n t h e human p e r s o n and t h e r e f o r e i n a l i e n a b l e ,
should a t t h e same t i m e a d m i t t h a t any r i g h t s c o u l d be l e g i t i m a t e l y d i s r e g a r d e d
b y means o f r e s e r v a t i o n s . Moreover, i t would be improper t o a l l o w r e s e r v a t i o n s
t o t h e covenants s i n c e t h e y were n o t i n s t r u m e n t s b y w h i c h one S t a t e g r a n t e d t o
another c e r t a i n b e n e f i t s on a r e c i p r o c a l b a s i s o r i n exchange f o r some o t h e r
benefits] t h e covenants g r a n t e d r i g h t s t o i n d i v i d u a l s , and n o t t o t h e S t a t e s
p a r t i e s themselves. A s u g g e s t i o n was made t h a t t h e a r t i c l e s o f t h e covenants
m i g h t be d r a f t e d i n such a way as t o make them a c c e p t a b l e w i t h o u t r e s e r v a t i o n s .
I t was a l s o suggested t h a t i n s t e a d o f a l l o w i n g r e s e r v a t i o n s t o be made,
c o u n t r i e s whose laws were i n c o n s i s t e n t w i t h any o f t h e p r o v i s i o n s o f t h e
covenants m i g h t be g i v e n t i m e w i t h i n w h i c h t o b r i n g t h e i r laws i n t o c o n f o r m i t y
w i t h such p r o v i s i o n s ,
28. A n o t h e r view was t h a t t h e r i g h t o f a S t a t e t o make i t s acceptance o f
t r e a t y o b l i g a t i o n s s u b j e c t t o such r e s e r v a t i o n s as i t deemed necessary was
an accepted p r i n c i p l e o f i n t e r n a t i o n a l law. A r e f u s u a l t o allow the exercise
o f t h a t r i g h t would be c o n t r a r y t o i n t e r n a t i o n a l l a w and, i n p a r t i c u l a r , t o
t h e p r i n c i p l e o f sovereign e q u a l i t y o f States enshrined i n the Charter.
29, A t h i r d view was t h a t r e s e r v a t i o n s s h o u l d be a d m i t t e d as a m a t t e r o f
p r a c t i c a l necessity. Unless p r o v i s i o n was made f o r some f o r m o f r e s e r v a t i o n s ,
few S t a t e s would be a b l e t o r a t i f y t h e covenants. Because o f t h e d i v e r s i t y o f
t h e e x i s t i n g j u r i d i c a l systems t h e p r o v i s i o n s o f t h e covenants c o u l d n o t be
expected t o f i t e x a c t l y t o t h e laws and l e g a l i n s t i t u t i o n s o f a l l countries,
even o f t h o s e w h i c h had a c h i e v e d a h i g h l e v e l o f r e s p e c t f o r human r i g h t s .
Changes i n domestic l e g i s l a t i o n t o b r i n g i t i n t o harmony w i t h t h e p r o v i s i o n s
o f t h e covenants would have t o be made, and such process r e q u i r e d t i m e .
F u r t h e r m o r e , s i n c e many o f t h e a r t i c l e s o f t h e d r a f t covenants had been adopted
b y a m a j o r i t y v o t e , p r o v i s i o n would have t o be made f o r t h e a d m i s s i b i l i t y o f
r e s e r v a t i o n s i f t h e covenants were t o be r a t i f i e d b y as many S t a t e s as p o s s i b l e .
The a d m i s s i o n o f r e s e r v a t i o n s would a l s o , i n t h e case o f t h e d r a f t covenant
on c i v i l and p o l i t i c a l r i g h t s , p r e c l u d e t h e p o s s i b l e i n t e r p r e t a t i o n o f a r t i c l e 2
18/
paragraph 2, as p e r m i t t i n g p r o g r e s s i v e i m p l e m e n t a t i o n o f t h e c o v e n a n t , s i n c e

18/ See under a r t i c l e 2.

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r e s e r v a t i o n s having i n view t h e progressive implementation o f any p a r t i c u l a r

p r o v i s i o n o f t h e covenant c o u l d o n l y he based on t h e assumption t h a t t h e
p r o v i s i o n s o f t h e covenant as a whole were o f immediate a p p l i c a t i o n .

Scope o f a d m i s s i b l e r e s e r v a t i o n s

30. O p i n i o n was d i v i d e d c o n c e r n i n g t h e e x t e n t and n a t u r e o f t h e r e s e r v a t i o n s

t o be a d m i t t e d . One v i e w was t h a t every S t a t e had t h e s o v e r e i g n r i g h t t o make
such r e s e r v a t i o n s as i t deemed n e c e s s a r y , and t h a t r i g h t should n o t be i m p a i r e d
b y any k i n d o f r e s t r i c t i o n s . There was no r e a s o n t o f e a r t h a t S t a t e s would
n o t honour t h e i r o b l i g a t i o n s o r t h a t t h e y would abuse t h e r i g h t t o make
r e s e r v a t i o n s , s i n c e experience had shown t h a t t h e number o f r e s e r v a t i o n s t o
conventions had n o t h i t h e r t o been u n d u l y numerous.
31. The o t h e r v i e w was t h a t t h e r i g h t t o make r e s e r v a t i o n s t o t h e covenants
should n o t be u n l i m i t e d . A g e n e r a l r i g h t o f r e s e r v a t i o n c o u l d render t h e
covenants n u g a t o r y . Moreover, t o p e r m i t r e s e r v a t i o n s t o be made w i t h o u t any
r e s t r i c t i o n s whatsoever would r e s u l t i n a m u l t i p l i c i t y o f t e x t s w h i c h would be
d i f f e r e n t f o r v a r i o u s p a r t i e s , each S t a t e p a r t y b e i n g bound o n l y b y t h e clauses
which suited i t . The covenants would t h u s be d e p r i v e d o f t h e i r e f f e c t i v e n e s s .
To l i m i t t h e scope o f r e s e r v a t i o n s would n o t be i n c o m p a t i b l e w i t h t h e d o c t r i n e
of S t a t e s o v e r e i g n t y s i n c e by becoming a p a r t y t o t h e covenants a S t a t e would
v o l u n t a r i l y r e s t r i c t i t s sovereignty. V a r i o u s ways o f l i m i t i n g t h e scope o f
r e s e r v a t i o n s were proposed o r suggested.
32. One p r o p o s a l , w h i c h was d i s c u s s e d m a i n l y i n r e l a t i o n t o t h e d r a f t covenant
on c i v i l and p o l i t i c a l r i g h t s , would l i m i t t h e scope o f p e r m i s s i b l e r e s e r v a t i o n s
b y p r o v i d i n g t h a t r e s e r v a t i o n s m i g h t be made t t h e e x t e n t t h a t t h e domestic
laws o f a S t a t e were i n c o n f l i c t w i t h o r d i d n o t g i v e e f f e c t t o a p a r t i c u l a r
p r o v i s i o n o f P a r t I I I o f t h e covenant. I t f u r t h e r provided t h a t the reservations
had t o be accepted by n o t l e s s t h a n t w o - t h i r d s o f t h e S t a t e s p a r t i e s t o t h e
covenant. I t was contended t h a t t h e p r o p o s a l p r o v i d e d adequate safeguards
a g a i n s t p o s s i b l e abuse o f t h e r i g h t t o make r e s e r v a t i o n s , f i r s t l y , because
r e s e r v a t i o n s c o u l d be made o n l y t o P a r t I I I o f t h e covenant, and, secondly.
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because r e s p o n s i b i l i t y f o r d e c i d i n g whether o r n o t a p a r t i c u l a r r e s e r v a t i o n
should be a d m i t t e d was p l a c e d i n t h e hands o f a community o f S t a t e s bound b y
common concern f o r human r i g h t s . On t h e o t h e r hand, i t was m a i n t a i n e d that
t o a l l o w r e s e r v a t i o n s t o P a r t I I I o f t h e covenant alone c o u l d n o t be j u s t i f i e d
in principle. The v i e w was a l s o expressed t h a t P a r t I I I c o n s t i t u t e d t h e most
i m p o r t a n t p a r t o f t h e covenant and t h a t t o a l l o w r e s e r v a t i o n s t h e r e t o would
r u n c o u n t e r t o t h e o b j e c t o f t h e covenant. Moreover, t h e p r o v i s i o n whereby
a S t a t e m i g h t make a r e s e r v a t i o n t o t h e e x t e n t t h a t i t s laws were i n c o n f l i c t
w i t h or d i d not give e f f e c t t o a p a r t i c u l a r p r o v i s i o n of Part I I I o f the
covenant would i n e f f e c t p e r m i t t h e p r o g r e s s i v e i m p l e m e n t a t i o n o f t h e covenant,
c o n t r a r y t o what was i n t e n d e d under p a r a g r a p h 2 o f a r t i c l e 2.
33. A n o t h e r p r o p o s a l was t h a t r e s e r v a t i o n s , t o be a d m i s s i b l e , s h o u l d be
c o m p a t i b l e w i t h t h e o b j e c t and purpose o f t h e covenant. Any d i f f i c u l t i e s which
m i g h t a r i s e i n t h e a p p l i c a t i o n o f t h e c r i t e r i o n o f c o m p a t i b i l i t y would be
r e s o l v e d b y s p e c i a l agreement between t h e S t a t e s concerned, o r , as a l a s t
r e s o r t , b y t h e I n t e r n a t i o n a l Court o f J u s t i c e . I t was e x p l a i n e d t h a t t h e
p r o p o s a l was based on t h e p r i n c i p l e s l a i d down i n t h e a d v i s o r y o p i n i o n o f t h e
I n t e r n a t i o n a l C o u r t o f J u s t i c e c o n c e r n i n g r e s e r v a t i o n s t o t h e Convention on
t h e P r e v e n t i o n and Punishment o f t h e Crime o f Genocide. Those who opposed t h e
p r o p o s a l m a i n t a i n e d t h a t t h e c r i t e r i o n o f c o m p a t i b i l i t y on which t h e Court
r e l i e d i n i t s a d v i s o r y o p i n i o n was n o t s u i t a b l e f o r a p p l i c a t i o n t o t h e d r a f t
covenants. I t would be e x t r e m e l y d i f f i c u l t t o d e f i n e t h e o b j e c t and purpose

o f such f a r - r e a c h i n g and d e t a i l e d m u l t i l a t e r a l c o n v e n t i o n s as t h e covenants

on human r i g h t s and, t h e r e f o r e , t o make t h e a d m i s s i b i l i t y o f r e s e r v a t i o n s
c o n t i n g e n t on such c r i t e r i o n was most u n d e s i r a b l e .
34. A s u g g e s t i o n was made r e g a r d i n g t h e p o s s i b i l i t y o f combining elements
o f t h e t w o p r o p o s a l s mentioned above: f i r s t l y , r e s e r v a t i o n s c o u l d be
p e r m i t t e d t o any a r t i c l e o f t h e covenants, n o t o n l y t o P a r t I I I , and, secondly,
r e s e r v a t i o n s would n o t be a d m i t t e d unless t h e y were c o m p a t i b l e w i t h t h e o b j e c t
and purpose o f t h e covenants and were accepted b y a t l e a s t t w o - t h i r d s o f t h e
States p a r t i e s . Another compromise s u g g e s t i o n was t h a t o n l y r e s e r v a t i o n s
c o m p a t i b l e w i t h t h e aims and o b j e c t o f t h e covenants should be p e r m i t t e d and
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t h a t such r e s e r v a t i o n s should r e l a t e s o l e l y t o t h e t h i r d p a r t o f t h e covenants

and should he accepted b y a t l e a s t t w o - t h i r d s o f t h e S t a t e s p a r t i e s t h e r e t o .
35. The f o l l o w i n g p r o p o s i t i o n s were a l s o advanced: ( a ) t h a t no r e s e r v a t i o n s
s h o u l d he p e r m i t t e d t o t h o s e p a r t s o f t h e covenants w h i c h c o n t a i n e d provisions
on t h e r i g h t o f s e l f - d e t e r m i n a t i o n , t h e g e n e r a l o b l i g a t i o n s o f S t a t e s , o r
the f i n a l clauses; (b) t h a t r e s e r v a t i o n s t o s u b s t a n t i v e a r t i c l e s should be
allowed, b u t n o t t o t h e implementation a r t i c l e s which c o n s t i t u t e d a c a r e f u l l y
elaborated system l i a b l e t o be upset b y any r e s e r v a t i o n s ; ( c ) t h a t no
r e s e r v a t i o n s t o s u b s t a n t i v e a r t i c l e s w h i c h s e t f o r t h f u n d a m e n t a l and u n i v e r s a l
r i g h t s s h o u l d be p e r m i t t e d ; ( d ) t h a t r e s e r v a t i o n s should be a l l o w e d only t o
measures o f i m p l e m e n t a t i o n ; ( e ) t h a t t h e a r t i c l e s t o w h i c h r e s e r v a t i o n s would
be p e r m i t t e d should be s p e c i f i e d ; ( f ) t h a t n o t o n l y should t h e r i g h t t o make
r e s e r v a t i o n s be l i m i t e d i n a g e n e r a l way, b u t i t should be e x p r e s s l y precluded
w i t h reference t o c e r t a i n a r t i c l e s ; (g) t h a t t h e r i g h t t o make r e s e r v a t i o n s
s h o u l d be s u b j e c t t o t h r e e c o n d i t i o n s , namely, t h a t no r e s e r v a t i o n s should
be a l l o w e d w i t h r e s p e c t t o c i v i l and p o l i t i c a l r i g h t s , t h a t r e s e r v a t i o n s
s h o u l d be t e m p o r a r y and t h a t t h e y should be j u s t i f i e d ; ( h ) t h a t r e s e r v a t i o n s
t o b o t h covenants should be a l l o w e d s u b j e c t t o l i m i t a t i o n s as t o t h e a r t i c l e
to w h i c h r e s e r v a t i o n s c o u l d be made and as t o t h e d u r a t i o n o f t h e r e s e r v a t i o n s .
The view was a l s o expressed t h a t i t was d e s i r a b l e t o a l l o w r e s e r v a t i o n s t o t h e
covenant on economic, s o c i a l and c u l t u r a l r i g h t s , b u t n o t t o t h e covenant on
c i v i l and p o l i t i c a l r i g h t s , s i n c e t h e f o r m e r d e a l t w i t h m a t t e r s t h e implementation
o f w h i c h would i n v o l v e heavy e x p e n d i t u r e s and w o u l d e n t a i l s e r i o u s financial
d i f f i c u l t y on t h e p a r t o f S t a t e s concerned. On t h e o t h e r hand, i t vas. h e l d
t h a t no r e s e r v a t i o n s should be a l l o w e d t o t h e covenant on economic, s o c i a l
and cultural rights. Reservation t o t h a t covenant was h a r d l y necessary
since implementation o f i t s p r o v i s i o n s was t o be a c c o m p l i s h e d p r o g r e s s i v e l y .

L e g a l e f f e c t t o be a t t r i b u t e d t o r e s e r v a t i o n s

36. Reference was made t o v a r i o u s views on t h e e f f e c t o f a r e s e r v a t i o n as

between t h e r e s e r v i n g S t a t e and t h e o t h e r S t a t e s p a r t i e s t o a convention
i f an o b j e c t i o n o r o b j e c t i o n s were made t o t h e r e s e r v a t i o n s . I t was s t a t e d
t h a t under t h e p r a c t i c e f o l l o w e d b y t h e League o f N a t i o n s and u n t i l r e c e n t l y
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by t h e U n i t e d N a t i o n s , an i n s t r u m e n t o f r a t i f i c a t i o n o r a c c e s s i o n o f f e r e d w i t h
a r e s e r v a t i o n would n o t be r e g a r d e d as d e f i n i t i v e l y d e p o s i t e d u n t i l t h e
r e s e r v a t i o n was accepted b y a l l t h e c o n t r a c t i n g p a r t i e s . Under what was c a l l e d
t h e Pan-American p r a c t i c e , on t h e o t h e r hand, when a S t a t e made a r e s e r v a t i o n
and a S t a t e p a r t y o b j e c t e d , t h e t r e a t y would n o t e n t e r i n t o f o r c e as between
them, b u t t h e r e s e r v i n g S t a t e would be deemed a p a r t y t o t h e t r e a t y w i t h r e s p e c t
t o t h e o t h e r S t a t e s p a r t i e s which d i d n o t o b j e c t t o t h e r e s e r v a t i o n . A n o t h e r
view was t h a t a t r e a t y t o which r e s e r v a t i o n s were made would, i n r e l a t i o n t o
t h e S t a t e s making t h e r e s e r v a t i o n s and a l l t h e o t h e r S t a t e s p a r t i e s , be
c o n s i d e r e d i n f o r c e i n r e s p e c t o f a l l i t s p r o v i s i o n s except t h o s e i n r e g a r d
t o which t h e r e s e r v a t i o n had been made. M e n t i o n was a l s o made o f t h e r u l e
l a i d down i n t h e a d v i s o r y o p i n i o n o f t h e I n t e r n a t i o n a l Court o f J u s t i c e on t h e
q u e s t i o n o f r e s e r v a t i o n s t o t h e Convention on t h e P r e v e n t i o n and Punishment
o f t h e Crime o f Genocide.
37 I t was p o i n t e d o u t t h a t t h e u n a n i m i t y r u l e was open t o t h e c r i t i c i s m t h a t
t h e r i g h t t o o b j e c t m i g h t be used as a f o r m o f v e t o which would r e s u l t i n
t h e complete e x c l u s i o n o f a r e s e r v i n g S t a t e f r o m t h e covenant. O b j e c t i o n s were
a l s o r a i s e d t o t h e a d o p t i o n o f what was known as t h e Pan-American p r a c t i c e
since i t would t e n d t o c o n v e r t t h e covenants f r o m i n s t r u m e n t s o f u n i v e r s a l
c h a r a c t e r t o a s e r i e s o f b i l a t e r a l agreements.
38. The v i e w was h e l d t h a t t h e system envisaged i n one o f t h e p r o p o s a l s
whereby r e s e r v a t i o n s had t o be accepted b y t w o - t h i r d s o f t h e S t a t e s p a r t i e s
was more s u i t a b l e t o t h e covenants t h a n t h e o t h e r systems. Since t h e covenants
would be adopted b y m a j o r i t y v o t e , i t was reasonable t h a t any proposed
m o d i f i c a t i o n , b y way o f a r e s e r v a t i o n , t o t h e o b l i g a t i o n s t o be assumed b y a
p a r t y s h o u l d a l s o be p u t t o t h e t e s t o f a v o t e . On t h e o t h e r hand, t h e
p r o p o s a l was c r i t i c i z e d as b e i n g u n r e a l i s t i c . Since many o f t h e c o n t r o v e r s i a l
a r t i c l e s o f t h e d r a f t covenants might be adopted b y s m a l l m a j o r i t i e s , t h e
r e s u l t o f t h e p r o p o s a l m i g h t w e l l be t o d e l a y i n d e f i n i t e l y t h e e n t r y i n t o
force o f the covenants.
39 A n o t h e r view was t h a t a r e s e r v i n g S t a t e s h o u l d n o t be c o n s i d e r e d a p a r t y
t o t h e covenant i f t h e r e s e r v a t i o n i t made was I n c o m p a t i b l e w i t h t h e o b j e c t and
purpose o f t h e covenant. Unless a s e t t l e m e n t was reached c o n c e r n i n g t h e
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c o m p a t i b i l i t y or i n c o m p a t i b i l i t y o f a r e s e r v a t i o n w i t h t h e o b j e c t and purpose
o f t h e covenant, any S t a t e p a r t y o b j e c t i n g t o t h e r e s e r v a t i o n c o u l d r e f u s e t o
c o n s i d e r t h e r e s e r v i n g S t a t e a p a r t y t o t h e covenant, b u t a S t a t e a c c e p t i n g
t h e r e s e r v a t i o n c o u l d c o n s i d e r t h e r e s e r v i n g S t a t e as a p a r t y t o t h e covenant.
I t was e x p l a i n e d t h a t t h e s i t u a t i o n would o n l y be t e m p o r a r y , s i n c e t h e p a r t i e s
concerned c o u l d s e t t l e t h e d i s p u t e as t o whether a r e s e r v a t i o n was or was n o t
c o m p a t i b l e w i t h t h e covenant by s p e c i a l agreement or by r e f e r e n c e t o t h e
I n t e r n a t i o n a l Court o f J u s t i c e . The p r o p o s i t i o n was c r i t i c i z e d on t h e ground
t h a t i t would l e a d t o f r a g m e n t a t i o n o f t h e covenant, s i n c e one S t a t e c o u l d
c o n s i d e r a r e s e r v i n g S t a t e n o t a p a r t y t o t h e covenant, y e t t h e y c o u l d b o t h
be p a r t i e s i n r e g a r d t o t h e r e m a i n i n g S t a t e s . The r e s u l t c o u l d w e l l be
u t t e r confusion. I t was f u r t h e r contended t h a t i f an o b j e c t i n g S t a t e
r e f e r r e d a d i s p u t e as t o t h e e f f e c t o f a r e s e r v a t i o n t o t h e C o u r t and t h e
Court d e c i d e d t h a t t h e r e s e r v a t i o n was i n c o m p a t i b l e w i t h t h e o b j e c t and
purposes o f t h e covenant, t h e r e s e r v i n g S t a t e and t h e S t a t e s w h i c h had
a c c e p t e d t h e r e s e r v a t i o n b u t w h i c h were n o t p a r t i e s t o t h e d i s p u t e would
be bound t o a r e s e r v a t i o n w h i c h had been pronounced I n c o m p a t i b l e w i t h t h e
covenant. I n r e p l y t o t h i s o b j e c t i o n , however, i t was p o i n t e d o u t t h a t a l l
S t a t e s p a r t i e s would have t o y i e l d t o t h e o p i n i o n o f t h e Court as t o t h e
c o m p a t i b i l i t y o r i n c o m p a t i b i l i t y o f a r e s e r v a t i o n t o t h e o b j e c t o r purpose
o f t h e covenant.
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DOCUMENTATION
Organ and Records o f Article
session discussion Other documents number
CHR (V) E/CN.4/SR.125 E/CN.4/258 and 331; ESC ( I X ) ,
Suppl.10, annex I , p.31

CHR ( V I ) E/CN.VSR. 138, E/CN.4/353/Add.2, 6, 7, 11; 365,

.153, I92-I94, 197 p a r t I I , S e c t i o n J ; 375; 486;
ESC ( X I ) , Suppl.5, para.27

GA (V) 3rd Com., 288th

meeting

CHR ( V I I ) E/CN.4/515/Add.l

ESC (XIII) 523rd m e e t i n g E/2059/Add.7

GA ( V I ) 3rd Com., 360th, GA ( V I ) , annexes, a.1.29,

362nd, 4o4th, A/C.3/L.190/Rev.l; A/C.3/559;
405th mtgs. A/2112

CHR (VIII) E/CN.4/654/Add.9; 655/Add.4; 66O

ESC ( X V I ) E/AC.7/SR.237

GA (VIII) 3rd Com., 503rd- GA ( V I I l ) , annexes, a.1.12,

505th, 508th, A/2573 and C o r r . l
509th mtgs.

CHR ( I X ) E/CN.4/677

CHR (X) E/CN.4/SR.442- E/CN.4/694/Add.3; 702, p.46;

449 E/CN.4/L.345 and A d d . l ; L.348;
L.349; L.351; L.352; L.353;
L.354; L.355; L.356; L.357; E S C ( x v n i ) ,
Suppl.7, p a r a s . 262-305 ; annex I I ,
section

ESC (XVIII) E/C.2/410

GA ( I X ) 3rd Com., 562nd-

564th, 566th-
573rd, 575th,
576th mtgs.