Article 25

Krieger, Heike

doi:10.1007/978-3-662-55160-8_28

Heike Krieger³

4747 Accesses

Abstract

If a treaty is applied before its formal entry into force, it is applied provisionally. In such a case, a negotiating State is bound by the treaty although the treaty has not yet been formally ratified on the national level. In general, negotiating States will only consider such a provisional application if one of the States must submit the treaty to a constitutional ratification process. Provisional application is thus a frequently used tool when national ratification might prolong the period between conclusion of a treaty and its entry into force.

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Notes

1.
Lefeber (1998), p. 81.
2.
Klaus (2005), p. 4.
3.
2080 UNTS 99.
4.
ILC, Statement of the Chairman of the Drafting Committee, Mr. Mathias Forteau, 4 August 2015, p. 5.
5.
Michie (2005), pp. 345, 347; more doubtful in the case of para 2: Bartels (2012), p. 118.
6.
Lefeber (1998), p. 82; Lefeber (2011), MN 2.
7.
153 LNTS 154.
8.
(1940) 34 AJIL Supp 127.
9.
(1997) 36 ILM 1232.
10.
(1986) 25 ILM 1377.
11.
Adede (1987), p. 118.
12.
Art 24 lit b 1948 Convention for European Economic Co-operation, 888 UNTS 142: “[P]ending the coming into force of the Convention in the manner provided […] the signatories agree, in order to avoid delay in its execution, to put it into operation on signature on a provisional basis and in accordance with their several constitutional requirements.”
13.
(1975) 14 ILM 1.
14.
Klaus (2005), p. 3.
15.
Michie (2005), pp. 352 and 354 et seq; see also Lefeber (2011), MN 2.
16.
(1991) 30 ILM 6, Protocol 30 ILM 52.
17.
[2002] UKTS 27.
18.
[1993] SIPRI Yearbook 576.
19.
(1997) 36 ILM 1507, Art 18.
20.
OJL 64, 8 March 1994 p. 2.
21.
Johnson (2003), p. 1.
22.
Art 23, 6, 7 Arms Trade Treaty of 2 April 2013, UN C.N.630.2014.TREATIES-XXVI.8. For the provisional application by Germany see [2014-II] BGBl 353.
23.
Michie (2005), p. 362.
24.
US, Senate Treaty Document EX. H, 96-1; see also First Report of SR Gómez-Robledo, 3 June 2013, UN Doc A/CN.4/664, para 32.
25.
Committee of Ministers Minutes (2009) PV Addendum 1 and Appendix 2 (Statement by the Committee of Ministers on the Conference of the High Contracting Parties to the European Convention on Human Rights), 119th session, 12 May 2009.
26.
Lefeber (2011), MN 2.
27.
UNSC Res 1289 (2000), 7 February 2000, UN Doc S/RES/1289 (2000), para 16: “Reiterates its request to the Government of Sierra Leone to conclude a status-of-forces agreement with the Secretary-General within 30 days of the adoption of this resolution, and recalls that pending the conclusion of such an agreement the model status-of-forces agreement dated 9 October 1990 (A/45/594) should apply provisionally”.
28.
Lefeber (1998), p. 83.
29.
See eg the Fisheries Agreement between the European Community and Côte d’Ivoire [1990] OJ L 379, 3; see Michie (2005), p. 346 n 8.
30.
Michie (2005), p. 346.
31.
1282 UNTS 205.
32.
1333 UNTS 119.
33.
1605 UNTS 211.
34.
1703 UNTS 203.
35.
1945 UNTS 143; (1994) 34 ILM 1014.
36.
(1994) 33 ILM 1313.
37.
Charney (1994), p. 709.
38.
ITU Resolution 69 (Kyoto 1994); see Michie (2005), p. 347.
39.
Protocol on the Provisional Application of the Revised Treaty of Chaguaramas 2259 UNTS 440.
40.
FCCC/KP/AWG/2010/10 “Legal considerations relating to a possible gap between the first and subsequent commitment periods”. 20 July 2010, para 18; FCCC/KP/CMP/2012/13/Add.1 “Report of the Conference of the Parties serving as the meeting of the Parties to the Kyoto Protocol on its eighth session, held in Doha from 26 November to 8 December 2012” 28 February 2013, para 5; see 3rd Report of SR Gómez-Robledo, 5 June 2015, UN Doc A/CN.4/687, para 118.
41.
Michie (2005), p. 346 et seq.
42.
1306 UNTS 263.
43.
1365 UNTS 121; see Michie (2005), p. 346 n 7.
44.
US Senate Treaty Document EX. H, 96–1.
45.
Examples of Precedents of Provisional Application, Pending their Entry into Force, of Multilateral Treaties, Especially Treaties which have Established International Organizations and/or Regimes, 12 June 1973, UN Doc A/AC.138/88; US Congressional Research Service, Law of the Sea Treaty: Alternative Approaches to Provisional Application (1974) 13 ILM 454.
46.
Aust (2013), p. 156; Michie (2005), p. 354.
47.
For an overview of pertinent practice see Third Report of SR Gómez-Robledo, 5 June 2015, UN Doc A/CN.4/687, paras 86–102.
48.
Third Report of SR Gómez-Robledo, 5 June 2015, UN Doc A/CN.4/687, paras 99 and 109 et seq.
49.
UN Doc UNGA Res 50/245, 10 September 1996.
50.
Resolution establishing the Preparatory Commission for the Comprehensive Nuclear-Test-Ban Treaty Organization; CTBT/MSS/RES/1, 19 November 1996, para 13.
51.
Cf Third Report of SR Gómez-Robledo, 5 June 2015, UN Doc A/CN.4/687, para 111.
52.
Sinclair (1984), p. 51.
53.
ILC Report 14th Session [1962-II] YbILC 182; see on the drafting history also ILC, Memorandum of the Secretariat, UN Doc A/CN.4/658, 1 March 2013, 3–11.
54.
Waldock IV 58.
55.
Waldock IV 58.
56.
Waldock IV 58.
57.
Waldock IV 58.
58.
Waldock IV 58.
59.
Waldock I 71; ILC Report 14th Session [1962-II] YbILC 182.
60.
Final Draft, Commentary to Art 22, 210, para 4.
61.
UN Doc A/CONF.39/C.1/L.194, UNCLOT III 144.
62.
UN Doc A/CONF.39/C.1/L.198, UNCLOT III 144.
63.
Statement of Denis (Belgium) UNCLOT I 142.
64.
Statement of Vallat (United Kingdom) UNCLOT II 40.
65.
Statement of Jagota (India) UNCLOT II 51.
66.
First Report of SR Gómez-Robledo, 3 June 2013, UN Doc A/CN.4/664, para 54; ILC Report 68th Session UN Doc A/71/10, para 257.
67.
First Report of SR Gómez-Robledo, 3 June 2013, UN Doc A/CN.4/664, para 54; ILC Report 68th Session UN Doc A/71/10; Second Report of SR Gómez-Robledo, 9 June 2014, UN Doc A/CN.4/675; Third Report of SR Gómez-Robledo, 5 June 2015, UN Doc A/CN.4/687; Fourth Report of SR Gómez-Robledo, 23 June 2016, UN Doc A/CN.4/699.
68.
Lefeber (1998), p. 84; Lefeber (2011), MN 4.
69.
Aust (2013), p. 154; Lefeber (1998), p. 85 et seq.
70.
For a criticism of this practice, see Michie (2005), p. 363.
71.
In the case of the Ottawa Convention, this danger did not become real since the Convention entered into force only 2 years after its conclusion in 1997.
72.
First Report of SR Gómez-Robledo, 3 June 2013, UN Doc A/CN.4/664, para 7.
73.
Switzerland, Letter of 27 January 2014, http://legal.un.org/docs/?path=../ilc/sessions/66/pdfs/french/pat_switzerland.pdf&lang=F. Accessed 22 November 2017.
74.
Second Report of SR Gómez-Robledo, 9 June 2014, UN Doc A/CN.4/675, para 24.
75.
(1991) 30 ILM 6, Protocol 30 ILM 52.
76.
Mathy (2011), Art 25 MN 23; Villiger (2009), Art 25 MN 6 et seq.
77.
55 UNTS 308.
78.
1836 UNTS 3.
79.
See Kuwait v American Independent Oil Co (Aminoil) (1982) 21 ILM 976, 1005.
80.
Interim Agreement Relating to the Civil Air Transport Agreement of August 11, 1952, as Amended, with Record of Consultations, Memorandum of Understanding and Exchange of Letters 1736 UNTS 284.
81.
Committee of Ministers Minutes (2009) PV Addendum 1 and Appendix 2 (Statement by the Committee of Ministers on the Conference of the High Contracting Parties to the European Convention on Human Rights), 119th session, 12 May 2009.
82.
Kleinlein (2017), p. 380.
83.
Art 7: “Pending the entry into force of this Protocol according to the conditions set under Article 6, a High Contracting Party to the Convention having signed or ratified the Protocol may, at any moment, declare that the provisions of this Protocol shall apply to it on a provisional basis. Such a declaration shall take effect on the first day of the month following the date of its receipt by the Secretary-General of the Council of Europe.”
84.
Committee of Ministers Minutes (2009) PV Addendum 1 and Appendix 2 (Statement by the Committee of Ministers on the Conference of the High Contracting Parties to the European Convention on Human Rights), 119th session, 12 May 2009.
85.
Declaration contained in a note verbale from the Permanent Representative of Germany, dated 29 May 2009, registered at the Secretariat General on 29 May 2009.
86.
Art 7 para 1 of the 1994 Agreement Relating to the Implementation of Part XI: “If on 16 November 1994 this Agreement has not entered into force, it shall be applied provisionally pending its entry into force by: (a) States which have consented to its adoption in the General Assembly of the United Nations, except any such State which before 16 November 1994 notifies the depositary in writing either that it will not so apply this Agreement or that it will consent to such application only upon subsequent signature or notification in writing; (b) States and entities which sign this Agreement, except any such State or entity which notifies the depositary in writing at the time of signature that it will not so apply this Agreement.”
87.
1999 Summary of Practice of the Secretary-General as Depositary of Multilateral Treaties, UN Doc ST/LEG/7/Rev.1, para 240.
88.
Lefeber (1998), p. 84 et seq; Villiger (2009), Art 25 MN 6.
89.
Lefeber (2011), MN 5; Mathy (2011), Art 25 MN 24.
90.
Lefeber (2011), MN 6; Villiger (2009), Art 25 MN 13.
91.
(1995) 34 ILM 373.
92.
Lefeber (1998), p. 85; Lefeber (2011), MN 7.
93.
Michie (2005), p. 362.
94.
ILC, Statement of the Chairman of the Drafting Committee, Mr. Mathias Forteau, 4 August 2015, p. 7.
95.
Aust (2013), p. 154; Arsanjani and Reisman (2011), pp. 86, 94; Lefeber (1998), p. 86; Lefeber (2011), MN 10; Mathy (2006), Art 25 MN 27.
96.
Lefeber (1998), p. 87; Villiger (2009), Art 25 MN 8.
97.
Lefeber (2011), MN 11; Art 7 para 3 of the 1994 Agreement on Part XI.
98.
Art 45 para 3 of the 1994 Energy Charter Treaty (60 days); Art 68 para 2 of the 1974 Agreement on an International Energy Programme (60 days); para 5 of the 1947 Protocol on the Provisional Application of the GATT (60 days).
99.
Art 45 para 3 of the 1994 Energy Charter Treaty.
100.
Art 45 para 3 of the 1994 Energy Charter Treaty; Art 68 para 2 of the 1974 Agreement on an International Energy Programme; para 5 of the 1947 Protocol on the Provisional Application of the GATT.
101.
PCA Hulley Enterprises Ltd v Russia PCA Case No AA 226 (2009); Yukos Universal Ltd v Russia PCA Case No AA 227 (2009); Veteran Petroleum Ltd v Russia PCA Case No AA 228 (2009).
102.
Kuwait v American Independent Oil Co (Aminoil) (1982) 21 ILM 976, 1005.
103.
Second Report of SR Gómez-Robledo, 9 June 2014, UN Doc A/CN.4/675, para 81.
104.
UN Doc A/CN.4/678, para 72.
105.
Kleinlein (2017), p. 379 et seq; Lefeber (1998), p. 90; Lefeber (2011), MN 16; Mathy (2006), Art 25 MN 25; Quast Mertsch (2012); Villiger (2009), Art 25 MN 4; see, however, Geslin (2005), p. 315 et seq.
106.
Final Draft, Commentary to Art 22, 210, para 1; see now Second Report of SR Gómez-Robledo, 9 June 2014, UN Doc A/CN.4/675, para 29.
107.
See eg ICSID Kardassopoulos v Georgia Case ARB/05/18, para 84.
108.
ICSID Kardassopoulos v Georgia Case ARB/05/18, para 209 et seq, 262; PCA Hulley Enterprises Ltd v Russia PCA Case No AA 226 (2009); Yukos Universal Ltd v Russia PCA Case No AA 227 (2009); Veteran Petroleum Ltd v Russia PCA Case No AA 228 (2009).
109.
ICSID Kardassopoulos v Georgia Case ARB/05/18, para 209.
110.
Lefeber (1998), p. 90; Wälde (1996), p. 314; Second Report of SR Gómez-Robledo, 9 June 2014, UN Doc A/CN.4/675, para 14.
111.
Committee of Ministers Minutes (2009) PV Addendum 1 and Appendix 2 (Statement by the Committee of Ministers on the Conference of the High Contracting Parties to the European Convention on Human Rights), 119th session, 12 May 2009; see also Quast Mertsch (2013), p. 33 et seq.
112.
UN C.N.592.2013.Treaties-XXVI.3, 14 September 2013.
113.
EC-M-33/DEC.1, 27 September 2013, preamble para 11; the example is quoted in Second Report of SR Gómez-Robledo, 9 June 2014, UN Doc A/CN.4/675, para 66 et seq.
114.
The Special Rapporteur therefore cites the case as an example for the idea that a State may unilaterally accept the provisional application of obligations stemming from the treaty to which it accedes; Third Report of SR Gómez-Robledo, 5 June 2015, UN Doc A/CN.4/687, para 120.
115.
Cf Third Report of SR Gómez-Robledo, 5 June 2015, UN Doc A/CN.4/687, para 3; see for considerations in the 6th Committee: UN Doc A/CN 4/678, paras 66–77.
116.
Third Report of SR Gómez-Robledo, 5 June 2015, UN Doc A/CN.4/687, para 57.
117.
Second Report of SR Gómez-Robledo, 9 June 2014, UN Doc A/CN.4/675, para 44.
118.
Klaus (2005), p. 4.
119.
Federal Constitutional Court (Germany) Decision of 07 December 2016, 2 BvR 1444/16, MN 1–32. Available via http://www.bverfg.de/e/rs20161207_2bvr144416.html. Accessed 22 November 2017.
120.
See on this Federal Constitutional Court (Germany) Decision of 07 December 2016, 2 BvR 1444/16, MN 45. Available via http://www.bverfg.de/e/rs20161207_2bvr144416.html. Accessed 22 November 2017.
121.
Verdross and Simma (1984), p. 460.
122.
Lefeber (1998), p. 82; see, however, Villiger (2009), Art 25 MN 13.
123.
See for these arguments: Kleinlein (2017), p. 381.
124.
Lefeber (1998), p. 90; Lefeber (2011), MN 15; see, however, Mathy (2011), Art 25 MN 11.
125.
Lefeber (1998), p. 89; see also the reservation of Columbia, Costa Rica, Guatemala and Peru to Art 25.
126.
Art 23 Russian Federal Law on International Treaties 34 (1995) ILM 1370.
127.
Norway, Letter of 31 January 2014, http://legal.un.org/docs/?path=../ilc/sessions/66/pdfs/english/pat_norway.pdf&lang=E. Accessed 22 November 2017.
128.
Charney (1994), p. 707; Montag (1986), pp. 113–149.
129.
For example Art 15 para 4 Convention on Driving Disqualifications.
130.
See Thym (2005), p. 184; see also Montag (1986), pp. 164–223.
131.
[1996] OJ C 313, 12.
132.
[1998] OJ C 216, 1.
133.
[1998-II] BGBl 2253.
134.
Lefeber (1998), p. 89; Lefeber (2011), MN 13.
135.
Belz (2009), p. 730.
136.
ICSID Kardassopoulos v Georgia Case ARB/05/18. The claimant, a Greek citizen, had privately invested in Georgia. He claimed that the Republic of Georgia had expropriated a concession for the construction of oil and gas pipelines without compensation for the investments between 1995 and 1997 when Georgia, as well as Greece, was applying the Energy Charter Treaty on a provisional basis.
137.
Yukos Universal Ltd v Russia PCA Case No AA 227 (2009), para 290.
138.
District Court of The Hague (Netherlands) Russian Federation v Veteran Petroleum Limited, Russian Federation v Yukos Universal Limited, Russian Federation v Hulley Enterprises Limited Judgment of 20 April 2016, para 5.27 et seq.
139.
Belz (2009), p. 748.
140.
Belz (2009), p. 745.
141.
PCA Hulley Enterprises Ltd v Russia PCA Case No AA 226 (2009); Yukos Universal Ltd v Russia PCA Case No AA 227 (2009); Veteran Petroleum Ltd v Russia PCA Case No AA 228 (2009).
142.
PCA Hulley Enterprises Ltd v Russia PCA Case No AA 226 (2009); Yukos Universal Ltd v Russia PCA Case No AA 227 (2009); Veteran Petroleum Ltd v Russia PCA Case No AA 228 (2009), for criticism see Arsanjani and Reisman (2011), p. 92 et seq.
143.
Yukos Universal Ltd v Russia PCA Case No AA 227 (2009), para 312 et seq.
144.
District Court of The Hague (Netherlands) Russian Federation v Veteran Petroleum Limited, Russian Federation v Yukos Universal Limited, Russian Federation v Hulley Enterprises Limited Judgment of 20 April 2016, para 5.18.
145.
Kleinlein (2017), p. 383.
146.
District Court of The Hague (Netherlands) Russian Federation v Veteran Petroleum Limited, Russian Federation v Yukos Universal Limited, Russian Federation v Hulley Enterprises Limited Judgment of 20 April 2016, para 5.19.
147.
This is also a major argument of the Interim Award Yukos Universal Ltd v Russia PCA Case No AA 227 (2009), para 315: “A treaty should not be interpreted so as to allow such a situation unless the language of the treaty is clear and admits no other interpretation.”
148.
Cf Kleinlein (2017), p. 385.
149.
Yukos Universal Ltd v Russia PCA Case No AA 227 (2009), para 339.
150.
District Court of the Hague (Netherlands) Russian Federation v Veteran Petroleum Limited, Russian Federation v Yukos Universal Limited, Russian Federation v Hulley Enterprises Limited Judgment of 20 April 2016, para 5.33 et seq.
151.
See also Kleinlein (2017), p. 383.
152.
See for considerations in the 6th Committee UN Doc A/CN 4/678, para 68.
153.
Third Report of SR Gómez-Robledo, 5 June 2015, UN Doc A/CN.4/687, para 52; Quast Mersch (2012), p. 174.
154.
Third Report of SR Gómez-Robledo, 5 June 2015, UN Doc A/CN.4/687, paras 61 and 70.
155.
Fourth Report of SR Gómez-Robledo, 23 June 2016, UN Doc A/CN.4/699, para 34.
156.
Third Report of SR Gómez-Robledo, 5 June 2015, UN Doc A/CN.4/687, para 82; Reuter IV 461, Art 25 para 1.
157.
See on the drafting history also ILC, Memorandum of the Secretariat, UN Doc A/CN.4/658, 1 March 2013; Summary record of the 1435th meeting, UN Doc A/CN.4/SR.1435, 7 June 1977, paras 4–32; Summary record of the 1451st meeting, UN Doc A/CN.4/SR.1451, 1 July 1977, para 45; Official Records of the United Nations Conference on the Law of Treaties between States and International Organizations or between International Organizations, held in Vienna, from 18 February to 21 March 1986, UN Doc A/Conf.129/16, paras 4, 5.
158.
Official Records of the United Nations Conference on the Law of Treaties between States and International Organizations or between International Organizations, held in Vienna, from 18 February to 21 March 1986, UN Doc A/Conf.129/16, para 65.
159.
ILC, Memorandum of the Secretariat, UN Doc A/CN.4/658, 1 March 2013, para 37 et seq; Official Records of the United Nations Conference on the Law of Treaties between States and International Organizations or between International Organizations, held in Vienna, from 18 February to 21 March 1986, UN Doc A/Conf.129/16, para 67.
160.
For a detailed overview see Third Report of SR Gómez-Robledo, 5 June 2015, UN Doc A/CN.4/687, para 125 et seq.
161.
1967 UNTS 255.

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Professor of Public Law and Public International Law, Law Faculty, Free University of Berlin, Berlin, Germany
Heike Krieger

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European Legal Studies Institute, University of Osnabrück, Osnabrück, Germany
Oliver Dörr
Faculty of Law, Department of Public Law/International Law, University of Salzburg, Salzburg, Austria
Kirsten Schmalenbach

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Krieger, H. (2018). Article 25. In: Dörr, O., Schmalenbach, K. (eds) Vienna Convention on the Law of Treaties. Springer, Berlin, Heidelberg. https://doi.org/10.1007/978-3-662-55160-8_28

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