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CONSULAR LAW: INTERNATIONAL LEGAL FRAMEWORK, EXPERIENCE OF LEADING DEMOCRATIC COUNTRIES Kadirova N. (Republic of Uzbekistan) КОНСУЛЬСКОЕ ПРАВО: МЕЖДУНАРОДНАЯ ПРАВОВАЯ ОСНОВА, ОПЫТ ВЕДУЩИХ ДЕМОКРАТИЧЕСКИХ СТРАН Кадирова Н. Р. (Республика Узбекистан)
Кадирова Наргиза Рашитовна / Kadirova Nargiza Rashitovna — преподаватель, кафедра государственного строительства и права, факультет международного права, Университет мировой экономики и дипломатии, г. Ташкент, Республика Узбекистан
Abstract: it comparatively analyzes the international experience and national legislature of Uzbekistan. The study also focuses upon new tasks standing before consular offices and also on demand for addressing the needs of globalization in consular affairs. Some historical and theoretical aspects of the development of Consular law. The institution of consular post is much older than that of diplomatic mission. The history of the consular function is largely associated with the development of international trade and the economic interest of states. While the origins of the consular institution can be traced back to ancient Greece, it was not until the twelfth century that the first figure of the consul emerged and developed to its present and more complex structure. In addition, the earliest codes on consular duties were developed throughout the same period, mostly in the form of maritime law compilations. Codification of Consular Law. In 1949, the United Nations International Law Commission considered the inclusion of consular intercourse and immunities as part of its future codification work. International Experience. International experience convincingly shows that the more actively government trade organizations and commercial firms, citizens participate in international trade, the more they need the services of consular service.
Аннотация: исследование сравнительно анализирует международный опыт и национальное законодательство Республики Узбекистан. Исследование фокусируется на новых задачах, стоящих перед консульскими учреждениями, а также на требованиях глобализации в консульских вопросах. Некоторые исторические и теоретические аспекты развития Консульского права. Учреждение консульского права имеет более старую историю, чем у дипломатической миссии. История консульской функции в значительной степени связана с развитием международной торговли и экономических интересов государств. Происхождение консульского учреждения восходит к древней Греции, но только в двенадцатом веке оно развилось до нынешней формы, и обрела более сложную структуру. Кроме того, в тот же период были разработаны самые ранние кодексы консульских правил, в основном в виде сборников по морскому праву. Кодификация консульского права. В 1949 году Комиссия международного права Организации Объединенных Наций рассмотрела вопрос о включении консульских сношений и иммунитетов в рамки своей будущей работы по кодификации. Международный опыт. Международный опыт убедительно показывает, что чем более активно государственные торговые организации и коммерческие фирмы, граждане участвуют в международной торговле, тем более они нуждаются в услугах консульской службы.
Keywords: international law, international relations, consular law, diplomatic law, humanity, consular relations, a foreign element, implementation, legal acts, consular conventions.
Ключевые слова: международное право, международные отношения, консульское право, дипломатическое право; человечество, консульские отношения, иностранный элемент, реализация, правовые акты, консульские конвенции.
Some Historical and Theoretical Aspects of the Development of Consular Law
The institution of consular post is much older than that of diplomatic mission. The history of the consular function is largely associated with the development of international trade and the economic interest of states. While the origins of the consular institution can be traced back to ancient Greece, it was not until the twelfth century that the first figure of the consul emerged and developed to its present and more complex structure. In addition, the earliest codes on consular duties were developed throughout the same period, mostly in the form of maritime law compilations.
In the sixteenth and seventeenth centuries, with the foundation of the diplomatic missions in Europe and its subsequent proliferation, a significant shift in consular powers came about, culminating with the publication of the first collection of consular rules (Ordonnance de la Marine, Colbert, 1681). The extraordinary increase of consulates during the nineteenth and twentieth centuries revealed the need for a more precise legal framework, particularly concerning the consular service and the legal status of consuls. Later on, the vertiginous changes in social, political and economic activity, as well as the increasing global trends affecting daily life impinged a new challenge for the consular institution: the protection of citizens and the safeguard of their interests.
Without any doubt in today's world, there is intensified interaction of international and national legal systems, with the growing impact of the first on the second.
Rights and duties of states as they send and receive consular representatives is the subject matter of the field of consular relations. The law relating to consular relations governs the process for accreditation of consular representatives, the obligations of the receiving state to facilitate consular functions, immunities enjoyed by the sending state for the premises it uses and the functions in which it engages, and immunities enjoyed by consular representatives. This body of law also relates to individual nationals of sending states, because consuls perform functions relating to the activities of their nationals in the territory of the receiving state, for example, marriage, the administration of estates, and criminal arrest and prosecution. The law on consular relations is found in customary international law, based on practice extending back a number of centuries [1]. Many states conclude treaties bilaterally with other states to provide for the specifics of the consular relations they desire.
The doctrine and practice of different countries on the issue of the relationship between international and domestic law is generally divided, as it is known, into the following four groups:
• International law (treaties) are declared a part of the country's law, the principle of lex posterior derogat (contrary rules or laws are canceled);
• International Law (treaties) is declared part of the law of the country, advantage is given international law,
• International agreements directly act in a State after the entry of the instrument of ratification or accession into force and after their publication;
• International agreements start acting on the territory of a State after the entry of the instrument of ratification or accession into force and only after the publication of a special law, which generally repeats the treaty (in judicial literature this method is often referred as transformation) [2].
In this regard, some preliminary attempts at the official codification of international consular legislation resulted in the adoption of regional agreements, preceding the pioneer work carried out by the League of Nations on the subject. In spite of the League of Nations' conclusions regarding not only the desirability, but the paramount importance of consular regulation through international instruments, the issue was left pending for nearly twenty years.
Codification of Consular Law
In 1949, the United Nations International Law Commission considered the inclusion of consular intercourse and immunities as part of its future codification work.
At its seventh session, held at Geneva, Switzerland, from 2 May to 8 July 1955, the Commission appointed Mr. Jaroslav Zourek as Special Rapporteur to commence the review of the matter and draft a set of provisional rules, based on jus cogens, national and international law.
The discussion did not formally start until 1958. The draft set of rules were later divided into four chapters (consular intercourse and immunities; consular privileges and immunities; legal status of honorary consuls and their privileges and immunities; and general provisions), and, accompanied by commentaries, submitted to Member States for their observations at different stages of the negotiation.
At its twelfth session held from 25 April to 1 July 1960, the Commission determined that articles referring to career consuls should also be applicable to honorary consuls. Consequently, the Commission included more comprehensive provisions and inserted some new articles, before provisionally adopting the draft articles and commentaries.
The numerous similarities of the subject to that of diplomatic immunities and intercourse led to the adoption of an accelerated procedure by the Commission on the topic. The 71 draft articles were then
submitted to the United Nations General Assembly for information purposes and the vast majority of States decided that they should form the basis of a multilateral instrument codifying consular law.
With a view to adopting a convention on the subject, the Commission recommended that the United Nations General Assembly convene an international conference of plenipotentiaries in March 1963.
The United Nations Conference on Consular Relations was held in Vienna, Austria, from 4 March to 22 April 1963 and was attended by delegates of ninety-five States. After careful consideration of the International Law Commission's text, the final version was prepared for submission to the plenary.
On 24 April 1963, the Conference adopted and opened for signature the Vienna Convention on Consular Relations, the Optional Protocol concerning Acquisition of Nationality and the Optional Protocol concerning the Compulsory Settlement of Disputes. The Convention and both Optional Protocols came into force on 19 March 1967.
The Vienna Convention consists of 79 articles, most of which provide for the operation of consulates; outline the functions of consular agents; and address the privileges and immunities granted to consular officials when posted to a foreign country [3].
A few other articles specify consular officials' duties when citizens of their country face difficulties in a foreign nation.
According to the Article 5 of the Convention a) furthering the development of commercial, economic relations between the sending State and the receiving State and otherwise promoting friendly relations between them; b) ascertaining by all lawful means conditions and developments in the commercial, economic life of the receiving State, reporting thereon to the Government of the sending State and giving information to persons interested, helping and assisting nationals, both individuals and bodies corporate, of the sending State are enumerated among other functions of consuls [4, p. 261].
A consular post can perform other functions entrusted to it by the sending State which are not prohibited by the laws and regulations of the receiving State, not objected by the receiving State, or referred to in the international agreements in force between the sending state and the receiving State [5].
As it follows from the analysis of the provisions of the international conventions, despite the importance of the promotion of trade and economic relations among the functions of a consul, in international legal documents there is no specific regulation of this function. It is fully attributed to the domestic law of a sending state. Consular law and practice of most developed countries unanimously recognize the need for the active participation of the consular services in the establishment and development of trade-economic relations between sending and receiving states. Thus, if international legal instruments usually refer to this feature in the most general terms, the domestic legislation of states establishes the exact amount of consular work in this area. Every state defines the scope of the functions of its consular representatives, taking into account the legislation of the host country. The main sources of consular law are the many consular agreements concluded by individual countries defining the legal status of consuls and laying down the basic rules under which they function. Provisions regulating consular activity are contained in treaties dealing with trade and navigation, legal assistance, and social security. The code of consular law is the multilateral Vienna Convention of 1963 on Consular Relations, which defines the privileges, immunities, and basic functions of career consuls, as well as the legal status of honorary consuls.
International Experience
For instance, the EU initiated attempts to elaborate a common framework ensuring consular protection for Union citizens in third countries [6]. Over the years, the Union has experienced particular legal obstacles to the full realization of its potential in consular affairs. Being an international organization, the EU cannot become a party to the Vienna Convention on Consular Relations (VCCR) [7]. In addition, the development of consular protection and assistance at the level of the EU remains a challenge in a policy field which interferes with deeply rooted national competences. The Union's powers are limited to the competences conferred upon by its Member States [8]. Both in the international and European legal contexts, the EU Member States remain dominant sovereign consular actors. The development of legal provisions on consular affairs is closely connected to the concept of Union citizenship [9, p. 164-177].
International experience convincingly shows that the more actively government trade organizations and commercial firms, citizens participate in international trade, the more they need the services of consular service.
It must be noted that the United States, for that matter, and other leading countries, very closely monitor the international economic situation and very quickly make necessary changes in their legislation and practices. In this regard, the general trend is to expand political and economic activities of the United States consular institutions [10].
There are, of course, some differences in terms of the scope of functions, allocation of certain functions to the fore, in the degree of specificity. However, in general, it should be recognized that the US law, legal regulations of Western Europe, Latin America are united in recognizing the need for active participation of consuls in foreign
economic activities of a state. This part does not provide direct implementation of foreign trade by consuls. It is about promoting its development, use of consuls as an additional leverage in foreign economic policy.
From all mentioned above it can be concluded that the most important value in a consular case are provisions of national law defining the status, functions and structure of the consular authorities and regulating certain aspects of foreign consular offices. When questions of the legal status of consular offices abroad, the rights and duties of their personnel arise in practice, the appeal is done primarily to existing conventions of multilateral nature, that determine their regime. It is common for these instruments that they are based on universally recognized principles of contemporary international law: the sovereign equality, respect for sovereignty, non-interference in internal affairs, reciprocity and responsibility for the violation of international law. Diplomatic, consular activities - one of the most extensive areas of international law and international affairs. Their successful operation depends largely on the legal support of both international and domestic law. In this regard, activities of consulates are directed to protection and promotion of rights and legal interests of a state, citizens in a country of stay. In this case consulates take upon themselves a wide range of obligations on behalf of the state promoting citizens with all legal support.
References
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4. Vienna Convention on consular relations. Done at Vienna on 24 April 1963. Entered into force on 19 March 1967. United Nations, Treaty Series. Vol.596. P. 261. [Electronic resource]: URL: http://www.fuech.eu/pdf/viennaconvention.pdf (date of access: 3.11.2016).
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6. European Treaties (and article 23 of the Treaty on the Functioning of the European Union specifically) use the expression 'protection by the diplomatic or consular authorities'. See Treaty on the Functioning of the European Union, OJ 2010, C 83/47, 30 March 2010 (TFEU) and Treaty on the European Union, OJ 2010, C 83/13, 30 March 2010 (TEU).
7. See art. 74 Vienna Convention on Consular Relations, signed at Vienna on 24 April 1963, entry into force 19 March 1967. UNTS. Vol. 596. P 262. no. 8638, 174 state parties. Two optional protocols were added to the Convention: the Optional Protocol to the Vienna Convention on Consular Relations concerning Acquisition of Nationality, done at Vienna on 24 April 1963, entry into force 19 March 1967, UNTS, vol. 596, p. 469, 40 State parties; the Optional Protocol to the Vienna Convention on Consular Relations concerning the Compulsory Settlement of Disputes, done at Vienna on 24 April 1963, entry into force 19 March 1967. UNTS. Vol. 596. P. 487. 50 State parties.
8. The Treaty on the European Union, OJ 2010, Art. 5 (1-2); art. 4 (1) TEU.
9. Blumann C. Citoyenneté euro péenne et droits fondamentaux, Revue des affaires européennes, 2006. Vol. 1. Pp. 73-82. P. 80; B. NASCIMBENE, Article I-10-La Citoyenneté de l'Union, in L. Burgorgue-Larsen, A. Levade and F.Picod (eds.), Traité établissant une Constitution pour l'Europe Commentaire article par article, Bruylant, 2007. Vol. 1. P. 164-177. P. 173.
10. Donna Hamilton The Transformation of Consular Affairs: the United States Experience, (Netherlands Institute of International Relations 'Clingendael' ISSN 1569-2981) [Electronic resource]. URL: https://www.clingendael.nl/sites/default/files/20091200_cdsp_paper_hamilton_transformation.pdf (date of access: 3.11.2016).
