Professional Documents
Culture Documents
International Law
by attyralph
By Ralph A. Sarmiento[1]
Introduction
This article seeks to answer the question of whether International Law
sufficiently protects the right of foundlings to a nationality. In particular, it
focuses on the issue of whether International Law affords foundlings the right
to be considered nationals of the State in which they are found, and whether
States have a binding obligation to confer their nationality on foundlings
found in their territory.
As used in this article, a foundling is a child of unknown parentage found
abandoned on the territory of a State.[2] It must be an infant at the time it
was found abandoned. The Black's Law Dictionary defines a foundling as "a
deserted or abandoned infant; a child without a parent or guardian, its
relatives being unknown."[3] The Oxford English Dictionary also uses the
term infant in defining foundling, thus "an infant that has been abandoned
by its parents and is discovered and cared for by others."[4] The word infant,
on the other hand, is defined as "a very young child or baby."[5]
This article will argue that there are gaps in International Law that result in
inadequate protection and implementation of the right of foundlings to a
nationality. In particular, this article will show that the obligation of a State to
confer its nationality upon a foundling in its territory exists only as a matter
of treaty obligation in International Law.
This article is structured as follows: The first section will talk about
nationality and discuss the different principles of acquiring a nationality and
the corresponding obligations of States. The second section will talk about
statelessness and the measures taken States to reduce it. The third section
will examine the rules that confer nationality on foundlings in international
conventions and treaties, and determine the scope of their coverage and
their binding nature. The fourth section will determine if the existing
practices or rules that confer nationality on foundlings have attained the
status of customary international law and, therefore, binding upon all States.
For purposes of this article, the terms nationality and citizenship shall be
used interchangeably and without distinction. Most States
Nationality
Nationality is generally understood as the legal bond that connects a person
to a particular State. It constitutes his membership in the particular State. It
makes him anational (or a citizen in the point of view of municipal law) of
that State.
Nationality creates reciprocal obligations between the citizen and the State.
It imposes upon the citizen the duty to render allegiance to the State and
subjects him to the obligations created by the laws of that State. Thus, it is
the basis of the State's exercise of jurisdiction over the person. On the part
of the State, nationality imposes the responsibility to protect the citizen. It
also gives the State the right to accord diplomatic protection to its nationals
and to make claims on their behalf.
Article 15(1) of the Universal Declaration of Human Rights[8] provides that
everyone has a right to nationality and that no one shall be arbitrarily
deprived of his nationality nor denied the right to change his nationality.
International Law, however, recognizes the right of each State to determine
who its citizens are, and to establish its own standards for conferring
nationality albeit only for domestic law purposes. In the Nottebohm case,
[9] the International Court of Justice (ICJ) ruled that Liechtenstein is the sole
judge of whether Nottebohm is a citizen of the State but such is for domestic
law purposes only as other nations are not obliged to recognize Nottebohm's
Liechtenstein citizenship especially absent a genuine link between
Nottebohm and that State.
The 1930 Hague Convention on Certain Questions Relating to the Conflict of
Nationality Laws[10] (hereafter, the "1930 Hague Convention") provides the
following rules in determining a persons nationality:
"It is for each State to determine under its own law who are its nationals.
Statelessness
While the concurrent application of the principles of jus soli and jus
sanguinis may result in a person having dual or multiple nationalities, their
conflicting application, on the other hand, may result in an anomaly whereby
an individual is not possessed of any nationality.
If a child whose parents' State of nationality exclusively applies the principle
of jus soli is born in the territory of another State that exclusively applies the
principle of jus sanguinis, the child would not be considered a citizen of
either State; hence, a stateless person.
Article 1 of the 1954 Convention Relating to the Status of Stateless
Persons[12] defines astateless person as a person who is not considered as a
national by any State under the operation of its laws. Since many rights and
privileges afforded by States may be exercised only by their nationals, a
stateless person, therefore, is at a big disadvantage.
While nationality is the basis of the reciprocal obligation of allegiance on the
part of the citizen and obligation of protection on the part of the State, a
stateless person is not without obligations to the State in which he finds
himself. Article 2 of the 1954 Convention Relating to the Status of Stateless
Persons[13] provides that:
"Every stateless person has duties to the country in which he finds himself,
which require in particular that he conform to its laws and regulations as well
as to measures taken for the maintenance of public order."
Reciprocally, although not a national of the State in which he finds himself, a
stateless person is not entirely without right and protection. Under the
same Convention,[14] a stateless person shall be accorded the same
treatment at least as favorable as that accorded to the nationals of the State
with respect to freedom to practice their religion and freedom as regards the
religious education of their children.[15] A stateless person shall also be
accorded the same treatment granted to a national of the country of his
habitual residence with respect to rights to artistic rights and industrial
property, free access to courts, rationing, elementary education, and public
relief and assistance.[16] A stateless person shall also be accorded the same
treatment which shall be as favorable as possible and, in any event, not less
favorable than that accorded to aliens generally in the same circumstances
with respect to rights to movable and immovable property, right of
association, wage-earning employment, liberal professions, housing, and
freedom of movement.[17]
Aiming to reduce statelessness by international agreement, the 1961
Convention on the Reduction of Statelessness[18] has adopted the following
measures to prevent statelessness:
"A Contracting State shall grant its nationality to a person born in its territory
who would otherwise be stateless." (Article 1)
"A Contracting State shall grant its nationality to a person, not born in the
territory of a Contracting State, who would otherwise be stateless, if the
nationality of one of his parents at the time of the persons birth was that of
that State." (Article 4)
2.
3.
2.
3.
2.
3.
2.
Every person has the right to the nationality of the state in whose
territory he was born if he does not have the right to any other
nationality.
3.
2.
Article 7(1) of the Convention on the Rights of the Child,[41] which was
adopted on 20 November 1989 in New York, reads:
"The child shall be registered immediately after birth and shall have the right
from birth to a name, the right to acquire a nationality and as far as possible,
the right to know and be cared for by his or her parents."
Article 7(2) of the same Convention[42] imposes the further obligation upon
States Parties to "ensure the implementation of these rights in accordance
with their national law and their obligations under the relevant international
instruments in this field, in particular where the child would otherwise be
stateless."
The African States also assert the right of every child to acquire a nationality.
The African Charter on the Rights and Welfare of the Child,[43] which was
adopted by the Organization of African Unity on 11 July 1990 at Addis Ababa,
Ethiopia, states:
Article 6: Name and Nationality
1.
Every child shall have the right from his birth to a name.
2.
3.
4.
In General Comments No. 17: Article 24 (Rights of the Child),[44] the Human
Rights Committee has made the following observations:
"Special attention should also be paid, in the context of the protection to be
granted to children, to the right of every child to acquire a nationality, as
provided for in article 24, paragraph 3. While the purpose of this provision is
to prevent a child from being afforded less protection by society and the
State because he is stateless, it does not necessarily make it an obligation
for States to give their nationality to every child born in their territory."
In his Guide to the "Travaux Prparatoires" of the International Covenant on
Civil and Political Rights,[45] Marc Bossuyt made the following observations
with respect to the adoption of the wording of Article 24, paragraph 3 of the
ICCPR.
"During the ensuing debate, the word 'acquire' was inserted in draft Article
24(3), and the words 'from his birth' were deleted. Accordingly, the word
'acquire' would infer that naturalization was not to be considered as a right
of the individual but was accorded by the State at its discretion.[46]
Hence, the general rights of everyone to nationality and of every child to
acquire a nationality do not impose an unqualified obligation on the part of a
State party to give its nationality on every child born on its territory.
The same interpretation would apply to all the other international
conventions that protect the right of everyone to nationality and the more
specific right of a child to acquire a nationality, including the Convention on
the Rights of the Child which was adopted after the ICCPR. In fact, Article
7(2) of the Convention on the Rights of the Child provides: "States parties
shall ensure the implementation of these rights in accordance with their
national law and their obligations under the relevant international
instruments in this field, in particular where the child would otherwise be
stateless."
Article 7(2) of the Convention on the Rights of the Child underscores the
equal importance of a State's "national law" and its "obligations under the
relevant international instruments" in ensuring its implementation of the
right of a child to acquire a nationality, in particular where the child would
otherwise be stateless. This obligation is explained by the Human Rights
Committee in paragraph 8 of General Comments No. 17,[47] which reads:
"States are required to adopt every appropriate measure, both internally and
in cooperation with other States, to ensure that every child has a nationality
2.
3.
The Covenant on the Rights of the Child in Islam,[51] which was adopted by
the 32nd Islamic Conference of Foreign Ministers in Sana'a, Republic of
Yemen in June 2005, states:
Article Seven - Identity
1.
2.
3.
SEC. 301. The following shall be nationals and citizens of the United States at
birth:
(f) a person of unknown parentage found in the United States while under
the age of five years, until shown, prior to his attaining the age of twentyone years, not to have been born in the United States;
1.
Section 3, Par. 4. (1) For the purposes of paragraph 3(1) (a), every person
who, before apparently attaining the age of seven years, was found as a
deserted child in Canada shall be deemed to have been born in Canada,
unless the contrary is proved within seven years from the date the person
was found.
1.
Article 8. (1) Until proof to the contrary, a person under the age of six
months found on the territory of the Republic is regarded as national by
descent.
1.
Art. 11. Considered born on the territory of the Republic of Bulgaria is a child
found on this territory, whose parents are unknown.
1.
Article 7. A child who was born or found on the territory of the Republic of
Croatia shall acquire Croatian citizenship if both of his or her parents are
unknown or are persons whose citizenship is unknown or are stateless
persons. The child shall lose Croatian citizenship if by time he or she is
fourteen it shall be determined that both of his or her parents are foreign
citizens.
1.
Article 1(2). A person born on Greek territory shall acquire the Greek
nationality by birth, provided that such person does not acquire any foreign
nationality by birth or is of unknown nationality.
1.
Section 3(3) Until proven to the contrary, the following persons shall be
recognized as Hungarian citizens:
1.
2.
Article 1(2). The child of unknown parents who is found abandoned in the
territory of the Republic shall, unless possession of another citizenship is
proved, be deemed citizen by birth.
1.
2.
2.
Citizenship by birth
(1) Except as provided in sub-section (2), every person born in India, (a) on or after the 26th day of January, 1950.
Mere birth in India, even if both the parents are unknown, is sufficient.[68]
1.
2.
Foundlings
5.
4.
Article 1
1.
2.
Foundlings.
Every person first found in Belize as a newly born deserted infant of unknown
and unascertainable parentage shall, until the contrary is proved, be deemed
to have the status of a citizen of Belize by descent.
1.
The above shows that there is a big corpus of domestic statutes granting
citizenship on foundlings. However, whether it satisfies the state practice
requirement of customary international law is an entirely different question.
The State practice, to establish a rule of customary international law, must
be extensive, virtually uniform, and show a general recognition that a rule of
law or legal obligation is involved. As stated by the International Court of
Justice in the North Sea Continental Shelfcases:
"Although the passage of only a short period of time is not necessarily, or of
itself, a bar to the formation of a new rule of customary international law on
the basis of what was originally a purely conventional rule, an indispensable
requirement would be that within the period in question, short though it
might be, State practice, including that of States whose interests are
specially affected, should have been both extensive and virtually uniform in
the sense of the provision invoked; and should moreover have occurred in
such a way as to show a general recognition that a rule of law or legal
obligation is involved."[78]
However, perfect uniformity in the application of the practice is not really
necessary. In theCase Concerning Military and Paramilitary Activities in and
against Nicaragua[79] when it examined the customary nature of the
principles of non-use of force and non-intervention, the ICJ stated that:
"It is not to be expected that in the practice of States the application of the
rules in question should have been perfect, in the sense that States should
have refrained, with complete consistency, from the use of force or from
intervention in each other's internal affairs. The Court does not consider that,
for a rule to be established as customary, the corresponding practice must
be in absolutely rigorous conformity with the rule. In order to deduce the
existence of customary rules, the Court deems it sufficient that the conduct
of States should, in general, be consistent with such rules, and that instances
of State conduct inconsistent with a given rule should generally have been
treated as breaches of that rule, not as indications of the recognition of a
new rule. If a State acts in a way prima facie incompatible with a recognized
rule, but defends its conduct by appealing to exceptions or justifications
contained within the rule itself, then whether or not the State's conduct is in
fact justifiable on that basis, the significance of that attitude is to confirm
rather than to weaken the rule."[80]
The ICJ also emphasized the necessity of opinio juris in several decisions. In
2.
3.
4.
A child whose parents are both unknown shall have the nationality of
the country of birth. (Art. 14, 1930 Hague Convention)[95];
2.
3.
4.
Each State Party shall provide in its internal law for its nationality to
be acquired ex lege by foundlings found in its territory who would
otherwise be stateless. ( 6,European Convention on Nationality)[98]
For the said treaty provisions to be binding on States, which are not parties
to said conventions as norms of customary international law, said provisions
must fulfill the said standards set by the ICJ.
The 1930 Hague Convention on Certain Questions Relating to the Conflict of
Nationality Laws entered into force on 1 July 1937 by virtue of the ratification
Conclusion
While the right to nationality is declared as a fundamental human
right by the Universal Declaration of Human Rights and some international
conventions, its specific application on foundlings is still a matter of State
prerogative and discretion. A State has the exclusive prerogative to
determine who its citizens are, which may be limited only by international
Endnotes:
[1] Dean, University of St. La Salle College of Law; Author: Public
International Law Bar Reviewer; MCLE Lecturer & Bar Reviewer on Public
International Law
[2] European Union Democracy Observatory on Citizenship, The EUDO
Glossary on Citizenship and Nationality, available at http://eudocitizenship.eu/databases/citizenship-glossary/glossary [accessed on
September 7, 2015]
[3] H.C. Black, Black's Law Dictionary (5th ed. 1979)
[31] ICJ, North Sea Continental Shelf Cases (Federal Republic of Germany v.
Denmark; Federal Republic of Germany v. Netherlands), I.C.J. Reports 1969,
p.3, International Court of Justice (ICJ), 20 February 1969
[32] Id. at par. 28
[33] Vienna Convention, supra., Art. 34
[34] Id., Art. 35
[35] Council of Europe, European Convention on Nationality, 6 November
1997, CETS 166
[36] League of Arab States, Arab Charter on Human Rights, 12 Int'l Hum. Rts.
Rep. 893, May 22, 2004
[37] Association of Southeast Asian Nations (ASEAN), ASEAN Human Rights
Declaration, 18 November 2012
[38] Organization of American States (OAS), American Convention on Human
Rights, "Pact of San Jose", Costa Rica, 22 November 1969
[39] Regional Treaties, Agreements, Declarations and
Related, Commonwealth of Independent States Convention on Human Rights
and Fundamental Freedoms, 26 May 1995
[40] UN General Assembly, International Covenant on Civil and Political
Rights, 16 December 1966, United Nations, Treaty Series, vol. 999, p. 171
[41] UN General Assembly, Convention on the Rights of the Child, 20
November 1989, United Nations, Treaty Series, vol. 1577, p. 3
[42] Supra
[43] Organization of African Unity (OAU), African Charter on the Rights and
Welfare of the Child, 11 July 1990, CAB/LEG/24.9/49 (1990)
[44] UN Human Rights Committee (HRC), CCPR General Comment No. 17:
Article 24 (Rights of the Child), 7 April 1989
[45] M.J. Bossuyt, Guide to the "Travaux Prparatoires" of the International
Covenant on Civil and Political Rights, Martinus Nijhoff Publishers, 1987
[46] Id. at pp. 466-467
[47] General Comments No. 17, supra., par. 8
[48] League of Nations, Convention on Certain Questions Relating to the
Conflict of Nationality Law, 13 April 1930, League of Nations, Treaty Series,
vol. 179, p. 89, No. 4137
[49] UN General Assembly, Convention on the Reduction of Statelessness, 30
August 1961, United Nations, Treaty Series, vol. 989, p. 175
[50] Supra
[51] Organization of the Islamic Conference (OIC), Covenant on the Rights of
the Child in Islam, June 2005, OIC/9-IGGE/HRI/2004/Rep.Final
[52] United Nations, Charter of the United Nations, 24 October 1945, 1 UNTS
XVI
[53] ICJ Statute, Article 38(1)(b)
[54] Title III, Chapter 1, 301, 8 U.S.C. 1401, available
athttps://www.law.cornell.edu/uscode/text/8/1401 [accessed 7 September
2015]
[55] Canada: Citizenship Act [Canada], R.S., 1985, c. C-29, 10 July 1985,
available at:http://www.refworld.org/docid/48106cf72.html %5Baccessed 12
September 2015]
[56] Austria: Federal Law Concerning the Austrian Nationality (Nationality
Act 1985) (last amended 2006) [Austria], 30 July 1985, available
at:http://www.refworld.org/docid/3ae6b52114.html %5Baccessed 22
September 2015]
[57] Law for the Bulgarian Citizenship (last amended February
2013) [Bulgaria], 5 November 1998, available
at: http://www.refworld.org/docid/49622ef32.html %5Baccessed 10
September 2015]
[58] Law on Croatian Citizenship (last amended 1993), 26 June 1991,
available
at:http://www.refworld.org/docid/3ae6b4dc14.html %5Baccessed 10
September 2015]
[59] Act on the Acquisition of Danish Nationality (amended to
2004) [Denmark], Consolidated Act No. 113 of 20 February 2003, with the
amendments following from Act No. 311 of 5 May 2004, 7 June 2004,
available at:http://www.refworld.org/docid/4e5cf36d2.html %5Baccessed 10
September 2015]
[60] Nationality Act (359/2003) [Finland], 359/2003, 1 June 2003, available
at:http://www.refworld.org/docid/3ae6b51614.html %5Baccessed 7
September 2015]
[61] Greek Nationality Code [Greece], Law 3284/2004, 10 November 2004,
available at:http://www.refworld.org/docid/4c90edcf2.html %5Baccessed 12
September 2015]
[62] Act LV of 1993 on Hungarian Citizenship [Hungary], 1 October 1993,
available
at:http://www.refworld.org/docid/3ae6b4e630.html %5Baccessed 12
September 2015]
[63]Italian Parliament, Law No. 91 or 1992, 15 August 1992, available
athttp://www.culture.gouv.fr/entreelibre/Laurette/country/italytxt.html [acces
at:http://www.refworld.org/docid/3ae6b4d714.html %5Baccessed 7
September 2015]
[76] Belizean Nationality Act 1981, 28 November 1981, available
at:http://www.refworld.org/docid/3ae6b50ac.html %5Baccessed 7 September
2015]
[77] Costica Dumbrava, Citizenship Policies in Eastern Europe: Acquisition
and Loss of Citizenship in Sixteen Post Communist Countries (2007), at p. 31,
available athttp://www.etd.ceu.hu/2007/dumbrava_costica.pdf [accessed on
7 September 2015]
[78] ICJ, North Sea Continental Shelf cases, supra., at par. 74
[79] Case Concerning Military and Paramilitary Activities In and Against
Nicaragua (Nicaragua v. United States of America); Merits, International
Court of Justice (ICJ), 27 June 1986
[80] Id., par. 186
[81] ICJ, North Sea Continental Shelf cases, supra., at par. 77
[82] Nationality Act (359/2003) [Finland], 359/2003, supra.
[83] Canada: Citizenship Act [Canada], R.S., 1985, c. C-29, 10 July
1985, supra.
[84] Title III, Chapter 1, 301, 8 U.S.C. 1401
[85] Canada: Citizenship Act [Canada], R.S., 1985, c. C-29, 10 July
1985, supra.
[86] Austria: Federal Law Concerning the Austrian Nationality (Nationality
Act 1985), supra.
[87] British Nationality Act 1981, 1981 Chapter 61, 30 October 1981,
available at:http://www.refworld.org/docid/3ae6b5b08.html %5Baccessed 12
September 2015]
[88] International Law Association, Final Report of the Committee on
Formation of Customary (General) International Law, Statement of Principle
Applicable to the Formation of General Customary International Law,
International Law Association London Conference 2000, available
at http://www.ila-hq.org/download.cfm/docid/A709CDEB-92D6-4CFAA61C4CA30217F376 [accessed on September 7, 2015]
[89] Id. Section 21
[90] Id. Section 24
[91] Id. Section 26
[92] Id. Section 26
[93] ICJ, North Sea Continental Shelf cases, supra., at par. 71
[94] Id.