BP-412E
ABORIGINAL PEOPLES AND THE
1995 QUEBEC REFERENDUM:
A SURVEY OF THE ISSUES
1995 QUEBEC REFERENDUM:
A SURVEY OF THE ISSUES
Prepared by:
Jill Wherrett
Political and Social Affairs Division
February 1996
.(15)ISSUES IN INTERNATIONAL LAWJill Wherrett
Political and Social Affairs Division
February 1996
The arguments put forth by the different parties raise questions about rights to self-determination, the conditions for secession, and rights to territory that are based in international law. This section discusses the concepts of self-determination, secession, and territorial integrity; both broadly and as applied to aboriginal peoples. Given the complexity of the issues and the evolving nature of international law, it is evident that different interpretations can be presented.
A. Self-Determination
Quebec supporters of secession and the Cree both present arguments based on a right to self-determination. While the principle of self-determination has evolved at the international level, it lacks a precise definition in international law; governments and legal scholars take many different positions on the issue. The development of the concept shows a continuing conflict between the principle of having peoples freely determine their political status and the principle of territorial integrity of states.
1. History and Evolution of the Concept in International Law
During the latter stages of World War I, the principle of self-determination began to emerge as an element of international law. In the 14 points he put forward as part of United States’ approach to peace process in 1918, American President Woodrow Wilson advocated a moderate version of self-determination, intended to apply to the peoples of Europe, particularly those formerly ruled by the Ottoman Empire. A more radical version of self-determination, articulated by Lenin prior to the Bolshevik Revolution, advocated self-determination as a means for the liberation of all peoples subject to a colonial order.(16)
Wilson’s more restrictive view of self-determination took prominence at this time. The Covenant of the League of Nations did not clarify the principle of self-determination, but the League made it clear that no positive international right to secession existed.(17) While the international community failed to adopt the right of self-determination to protect "peoples" within existing states it did embrace the principle of "minority rights." A "minority group" within a segment of a state would receive the support of the international community if its rights to self-determination, short of secession, were being infringed.(18)
In the period during and after World War II, an ethos of nationalism and anti-colonialism began to spread. There continued to be a split in the international community, however, between those who challenged the colonial order, and countries that remained committed to retaining their colonies.
2. United Nations Documents and Self-Determination
Following the creation of the United Nations, the process of clarifying and interpreting the concept of self-determination began. At its inception, the U.N. Charter clearly did not include any general right of self-determination; it characterized self-determination as a principle, rather than a right. Article 1(2) stated one of the U.N.’s guiding principles: "To develop friendly relations among nations based on respect for the principle of equal rights and self-determination of peoples..."
The pressures of decolonization movements gradually led to a broader interpretation of a right to self-determination. In 1960, in a significant move, the United Nations adopted the Declaration on the Granting of Independence to Colonial Peoples.(19) The Declaration provided in Article 2 that "(a)ll peoples have the right to self-determination; by virtue of that right they freely determine their political status and freely pursue their economic, social and cultural development." While this document is essential political in nature and is of questionable legal authority, it has provided the groundwork for what may be called the new U.N. law of self-determination. As international law scholar Richard Falk has noted:
The thinking expressed in Resolution 1514 remains important in understanding the most recent post-colonial phases of struggle with respect to the application of the right of self-determination, although it does not attempt to clarify the specific legal content of the right, nor does it identify the circumstances of its application and their limits.(20)
In 1966, the General Assembly of the United Nations adopted the final text of the two International Covenants on Human Rights. The texts of the International Covenant on Economic, Social and Cultural Rights and of the International Covenant on Civil and Political Rights and the Optional Protocol to the International Covenant on Civil and Political Rights recognize that all peoples have the right to self-determination.Again, no definition of the right to self-determination was provided in the documents. Comments formulated during the drafting of these documents suggest that the right of secession was not meant to be embraced by this provision, which is the position held by most international legal authors. The few who have attempted to prove otherwise put forward the argument that, in spite of existing ambiguity, both Covenants were adopted unanimously, stating a universal principle of the right to self-determination that could not exclude a right to secede. They further view their position as supported by the language of the Covenant, which grants a right of self-determination to "all peoples" and not just to colonies or other non-self-governing territories.
Efforts to reconcile conflicting opinions over the principle or right of self-determination culminated in a new U.N. resolution in 1970. The influential Declaration Concerning Friendly Relations Among States(21) reasserted the principle of the equality of the rights of peoples and their right to self-determination established in the U.N. Charter:
By virtue of the principle of equal rights and self-determination of peoples enshrined in the Charter of the United Nations, all peoples have the right freely to determine, without external interference, their political status and to pursue their economic, social and cultural development, and every State has the duty to respect this right in accordance with the provisions of the Charter.
Nothing in the foregoing paragraphs shall be construed as authorizing or encouraging any action which would dismember or impair, totally or in part, the territorial integrity or political unity of sovereign and independent States conducting themselves in compliance with the principle of equal rights and self-determination of peoples as described above and thus possessed of a government representing the whole people belonging to the territory without distinction as to race, creed or colour.
The Declaration seems to indicate that respect for the territorial integrity of a state should be given precedence over the exercise of self-determination. Thus, it would preclude secession. It has been suggested, however, that the Declaration reasserts the principle of territorial integrity but in a more conditional form, indicating a "potential receptivity to and loopholes for self-determination claims that are not strictly reconcilable with the primacy previously accorded unconditionally to territorial integrity and political unity."(22)A broad view of the right encompasses both "external" self-determination, through which a people freely determines its status within the international community and liberates itself from alien rule, and "internal" self-determination, through which a people chooses the desired system of government and the nature of the regime. Thus, external self-determination includes the classic sense of the right -- that of secession and the formation of a new state. It may also include integration into an existing state or association with another state. Internal self-determination involves a people determining their own destiny within the boundaries of an existing state.
As is evident from the preceding discussion, self-determination is an ambiguous concept without a clear definition. As a result, the status of the right in international law is subject to varying interpretations. Richard Falk argues that the right has matured along three paths; morality, politics, and law; with international law lagging behind moral advocacy and political practice.(23) He notes that international law literature supports two opposite tendencies: the first limits self-determination by insisting on the unconditional territorial unity of states; the second, reformulated legal approach "acknowledges the unsettled character and scope of the right but takes note of the degree to which diplomatic recognition and admission to the United Nations have been granted to entities formerly encompassed by the Soviet Union and Yugoslavia."(24) While some legal debate continues over the status of self-determination as a legal right versus a political principle, in Falk’s opinion it has become generally accepted as a norm of international law.
The international law documents discussed above refer to the self-determination of "peoples." There is, however, no generally accepted definition of this term in international law; as a result, its meaning varies and remains contentious. Elements that have been identified include a common language, history, culture, race or ethnicity, way of life and territory. The notion of peoples also includes a subjective element -- a present consciousness of group identity and a will to protect that identity.(25)3. Secession
Secession, as understood in international law, refers to the creation of a state without the consent of the former state to which the breakaway entity was joined.(26) As scholars in international law have pointed out, secessionist self-determination is an issue separate from a general right of self-determination.(27)
International law supports secession or independence for "peoples" or "territories" only in exceptional situations.(28) While international law does support the right of self-determination of all peoples, it has generally limited the right to secede to special conditions of decolonization in the third world. Although most international lawyers agree that the U.N. Charter does not encompass the right of secession, various justifications for secession have been offered.(29)
4. Territorial Integrity
Territorial integrity, the principle that supports the inviolability of the territory of state, is recognized in Article (4) of the U.N. Charter.
In the case of secession for colonized or subjugated peoples, international practice has followed the principle of uti possidetis, by which a colonized area becomes independent using the state boundaries established for the colony. It was first applied to the Spanish colonies in Latin America, and has since been adopted in other areas. This rule intended to maximize continuity and stability, to limit ethnic claims, and to minimize conflict. However, some authors have noted that uti possidetis is not a mandatory principle under international law, and that its application has been variable.