Abstract
International investment law is increasingly becoming an important reference field of international economic law. The chapter examines if, and the extent to which, investment arbitral tribunals sought to meet the need to respect host State’s capacity to regulate in the public interest. Preliminarily, the chapter deals with the notion of regulation in the public service sector, by exploring its categorization as a right and as a duty of States. Subsequently, it assesses whether the regulation of public services is a matter falling within international investment law’s scope of application and whether all regulatory measures used to govern public services’ provision may fall under international arbitral tribunals’ scrutiny. It then analyses the controversial distinction between lawful regulation and regulatory expropriation under international investment law. To this purpose, the chapter takes into consideration the different approaches adopted by arbitral tribunals, in order to evaluate their capacity to meaningfully contribute to find a balance between investors’ and States’ competing interests with regard to public services. Lastly, the analysis turns to the increasingly important role played by the fair and equitable treatment standard in arbitral practice, also with regard to public services’ cases. In particular, this part of the chapter looks at the difficulties in finding an equilibrium between stability and regulatory change in the public services’ sector, by examining the impact of the legitimate expectations doctrine upon host States’ regulatory autonomy.
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Notes
- 1.
The term has not a uniform definition under international law. This paper will use it as indicating all those activities that States subject to specific obligations in order to meet objectives of general interest. The term will mostly, albeit not exclusively, cover services provided through network industries, such as electricity, gas and water. On the definition of the notion of “public service” see below Sect. 4.2.
- 2.
Krajewski 2003a, p. 4.
- 3.
The Glossary of Industrial Organisation Economics and Competition Law, compiled by R.S. Khemani and D.M. Shapiro, commissioned by the Directorate for Financial, Fiscal and Enterprise Affairs, OECD, 1993 defines regulation as the “imposition of rules by government, backed by the use of penalties that are intended specifically to modify the economic behaviour of individuals and firms in the private sector”. An equally broad definition is used by Mitnick 1980, 1. The A. defines regulation as “[…] the intentional restriction of a subject’s choice of activity by an entity not directly party or involved in that activity”.
- 4.
This distinction is not to be taken too rigidly, as regulatory measures normally pursue different types of objectives simultaneously. See Krajewski 2003a, p. 18.
- 5.
- 6.
Baldwin and Cave 1999, p. 9.
- 7.
Palast et al. 2003.
- 8.
Houben 2008, pp. 7–27.
- 9.
- 10.
But these efforts seems to be to no avail, as the notion of services of general economic interest, as well as its relationship with other related concepts, such as that of services of general interest, is still uncertain and it has generated much confusion. See generally Neergaard 2009, pp. 17–50.
- 11.
European Commission, Green Paper on Services of General Interest, COM(2003) 270 final, 21 May 2003, para 17.
- 12.
Lowe 2002, pp. 450–451.
- 13.
The recognition of this right sought to respond to the concerns that the adoption of GATS could jeopardise States’ capacity to regulate services and, in particular, public services. The WTO website also features a section devoted to “Misunderstanding and scare stories: The right to regulate” (http://www.wto.org/english/tratop_e/serv_e/gats_factfiction11_e.htm). On the relationship between trade and public services see Arena 2011, pp. 489–528; Krajewski 2003b, pp. 341–367; Adlung 2006, pp. 455–485.
- 14.
See Hariou 1901, pp. 26–27.
- 15.
Duguit 1925, p. 55.
- 16.
M. Krajewski, Investment Law and Public Services http://papers.ssrn.com/sol3/papers.cfm?abstract_id=2038514. 1 April 1 2012. Accessed 20 November 2014.
- 17.
See High Commissioner for Human Rights, Economic, Social and Cultural Rights. Handbook for National Human Rights Institutions, United Nations: New York—Geneva (2005), 18 where it says that “[t]he obligation to fulfil economic, social and cultural rights […] can entail issues such as […] the provision of basic public services and infrastructures”.
- 18.
Graham 2005, pp. 33–56.
- 19.
UN Economic and Social Council, Report of the United Nations High Commissioner for Human Rights (focusing on the concept of progressive realization of economic, social and cultural rights), E/2007/82, 25 June 2007, paras 34–36.
- 20.
UN General Assembly, Resolution adopted by the Human Rights Council. Human Rights and Access to Safe Drinking Water and Sanitation, A/HRC/RES/15/9, 6 October 2010.
- 21.
UNCTAD, Scope and Definition, Series on Issues in International Investment Agreements II. UN Publication, 2011, pp. 7–12. New York, Geneva.
- 22.
M. Krajewski, Public Services in Bilateral Free Trade Agreements of the EU http://www.epsu.org/IMG/pdf/PublicServicesFTAs_FinalVersion.pdf, p. 7. Accessed 20 November 2014. See also Arena 2011, pp. 495–496.
- 23.
North American Free Trade Agreement between the Government of Canada, the Government of the United Mexican States and the Government of the United States of America, 12 December 1992, Annex II.
- 24.
Australia—United States Free Trade Agreement, 18 May 2004, Annex II.
- 25.
Colombia—United States Free Trade Agreement, 22 November 2006, Annex II.
- 26.
Republic of Korea—United States Free Trade Agreement, 30 June 2007, Annex II.
- 27.
On the different interpretation of the words “on a commercial basis” see Arena 2011, p. 502.
- 28.
Krajewski 2003b, p. 350.
- 29.
See generally Burke-White 2010, pp. 407–432.
- 30.
In the second half of the ‘90s the growth of public debt drove the country into recession that caused massive protests and social rests, as most of Argentina’s households were no longer able to cope with everyday life expenses. In order to guarantee the access to basic public services, the Government first forced private investors to accept a temporary tariffs’ freezing. Subsequently, in January 2002, it adopted the Ley de Emergencia, which terminated tariffs’ automatic adjustment mechanism, based on the US Producer Price Index (PPI), as well as the peso-to-dollar 1-to-1 peg.
- 31.
Schreuer 1996, pp. 318–492.
- 32.
Methanex Corp. v. United States of America , UNCITRAL Case, Award on Jurisdiction and Admissibility of 7 August 2002, para 139. This notwithstanding the fact that Article 1101 NAFTA only speaks of measures “relating to” investments or investors of another party.
- 33.
CMS Gas Transmission Company v. The Republic of Argentina , ICSID Case No. ARB/01/8, Decision on Objections to Jurisdiction of 7 July 2003, para 33. See also Total S.A. v. The Argentine Republic, ICSID Case No. ARB/04/1, Decision on Objections to Jurisdiction of 25 August 2006, para 59; Suez, Sociedad General de Aguas de Barcelona S.A. and Vivendi International S.S. v. The Argentine Republic, ICSID Case No. ARB/03/19 and AWG Group Ltd. v. The Argentine Republic, UNCITRAL Case, Decision on Jurisdiction of 3 August 2006, paras 27–31; Telefonica S.A. v. The Argentine Republic, ICSID Case No. ARB/03/20, Decision of the Tribunal on Objections to Jurisdiction of 25 May 2006; paras 62–67; Gas Natural SDG S.A. v. The Argentine Republic, ICSID Case No. ARB/03/10, Decision on Preliminary Questions on Jurisdiction of 17 July 2005, paras 37–39.
- 34.
AES Corp. v. The Argentine Republic, ICSID Case No. ARB/02/17, Decision on Jurisdiction of 26 April 2005, para 57.
- 35.
Van Harten and Loughlin 2006, p. 146.
- 36.
Suez, Sociedad General de Aguas de Barcelona S.A. and Vivendi International S.S. v. The Argentine Republic, ICSID Case No. ARB/03/19 and AWG Group Ltd. v. The Argentine Republic, UNCITRAL Case, Decision on Liability of 30 July 2010, para 132.
- 37.
One of the best-know definitions of indirect expropriation is that elaborated by the Iran-US Claims Tribunal in the Starrett Housing decision, where it has been observed that “[…] it is recognized in international law that measures taken by a State can interfere with property rights to such an extent that these rights are rendered so useless that they must deemed to have been expropriated, even though the State does not purport to have expropriated them and the legal title to the property formally remains with original owner” (Starret Housing Corp. v. Government of the Islamic Republic of Iran, Award No. ITL 32-24-1 of 19 December 1983, Iran-US CTR, 4, 154).
- 38.
- 39.
- 40.
For an overview of these references in some international investment agreements, see UNCTAD, Expropriation. A Sequel, Series on Issues in International Investment Agreements II. UN Publication, 2012, pp. 8–12. New York, Geneva.
- 41.
Norwegian Shipowners Claims, 13 October 1922, UNRIAA, I, 1922, 334.
- 42.
Case concerning certain German interests in Polish Upper Silesia (The Merits), 25 May 1925, PCIJ, Ser. A, 7, 1926; Interpretation of Judgements Nos. 7 and 8 (The Chorzów Factory), 16 December 1927, PCIJ, Ser. A, 13, 1927; The Oscar Chinn Case, 12 December 1934, PCIJ, Ser. A, 63, 1934.
- 43.
Starrett Housing, above n 37, para 154. The Iran-US Claims Tribunal’s contribution to the development of the legal notion of indirect expropriation has been substantial, also from a quantitative perspective as this issue has been dealt with in more than 60 cases. See Brower and Brueschke 1998.
- 44.
See Lowe 2002, pp. 457–460.
- 45.
Reinisch 2008, p. 432.
- 46.
AWG/Suez, above n 36, para 132.
- 47.
S.D. Mayers Inc. v. Government of Canada, UNCITRAL, Partial Award of 13 November 2000, para 282.
- 48.
Sempra Energy International v. The Argentine Republic, ICSID Case No. ARB/02/16, Award of 28 September 2007, para 284.
- 49.
The same paragraph pointed out that “[t]he list of measures could be expanded significantly”.
- 50.
See also PSEG Global Inc., The North American Coal Corp., and Konya Ilgin Elektrik Üritim ve Ticaret Limited Sirketi v. Republic of Turkey, ICSID Case No. ARB/02/25, Award of 19 January 2007, para 278.
- 51.
CMS Gas Transmission Company v. The Republic of Argentina , ICSID Case No. ARB/01/8, Final Award of 12 May 2005, para 262.
- 52.
LG&E Energy Corp., LG&E Capital Corp. And LG&E International Inc. v. The Argentine Republic , ICSID Case No. ARB/02/1, Decision on Liability of 3 October 2006, para 199.
- 53.
Compañia de Aguas del Aconquijia S.A. and Vivendi Universal S.A. v. The Argentine Republic , ICSID Case No. ARB/97/3, Award of 20 August 2007, para 7.5.34.
- 54.
Dolzer 2003, p. 78.
- 55.
Arena 2011, pp. 515–516. The author uses the concept to describe GATS approach toward public services.
- 56.
LG&E, above n 52, para 195.
- 57.
Vivendi II, above n 53, para 7.5.20. The same approach has been consistently adopted also by the Iran-US Claims Tribunal: see, for instance, Tippets, Abbett, McCarthy, Stratton v. TAMS-AFFA Consulting Engineers of Iran, Award No. 141-7-2 of 29 June 1984, Iran-US CTR, 21, para 115.
- 58.
- 59.
- 60.
Azurix v. Argentine Republic , ICSID Case No. ARB/01/12, Award of 14 July 2006, para 310.
- 61.
LG&E, above n 52, para 191.
- 62.
Sempra, above n 48, paras 284–285.
- 63.
Vivendi II, above n 53, para 7.5.11; Enron Corporation and Ponderosa Assets, L.P. v. Argentine Republic, ICSID Case No. ARB/01/3, Award of 22 May 2007, 245; CMS, above n 51, para 262. In this regard Coe and Rubins 2005, p. 621 observe that “the sense often conveyed is that interference must approach total impairment”.
- 64.
This leniency would represent a counterbalance to the far stricter interpretative stance adopted with regard to the fair and equitable treatment. In this manner, arbitral tribunals would seek to “comfort loosing respondents—“giving them something”—by declaring that there was no expropriation”. See Paulsson 2006, p. 7.
- 65.
- 66.
See recently Karkkainen 2006.
- 67.
American Law Institute 1987, para 712(1).
- 68.
Convention Establishing the Multilateral Investment Guarantee Agency, 12 April 1988.
- 69.
Newcombe 2005, p. 26.
- 70.
H. Mann, The Final Decision on Methanex v. United States: Some New Wine in Some New Bottles. International Institute for Sustainable Development http://www.iisd.org/pdf/2005/commentary_methanex.pdf. August 2005. Accessed 20 November 2014; Freeman 2003, p. 208. See also Clough 2005, p. 563.
- 71.
Schreuer 2005a, p. 28.
- 72.
Azurix, above n 60, paras 310–311. See Costamagna 2006.
- 73.
Cross-regime comparison has been often advocated as a way to increase the capacity of international arbitral tribunals to deal with non-economic values and, implicitly, enhance their legitimacy. However, this approach has been criticized, highlighting that boundary crossing is not always desiderable and that, in any case, international arbitrators engaging in it should pay greater attention to the context. In this sense see J.E. Alvarez, Beware: Boundary Crossing. http://www.law.yale.edu/documents/pdf/sela/Bewareboundarycrossings_nofootnotes_%282%29.pdf. 19 March 2013. Accessed 20 November 2014.
- 74.
Técnicas Medioambientales Tecmed, S.A. v. United Mexican States , ICSID Case No. ARB(AF)/00/2, Award of 29 May 2003, paras 121–122.
- 75.
See Henckels 2012, pp. 234–237.
- 76.
- 77.
Paulsson 2006, p. 2.
- 78.
- 79.
Contra Burke-White and von Staden 2010, p. 287.
- 80.
- 81.
Henckels 2012, p. 238.
- 82.
Kavanagh 2008, p. 186.
- 83.
Henckels 2012, p. 240.
- 84.
Burke-White and von Staden 2010, pp. 287–295.
- 85.
LG&E, above n 52, para 195.
- 86.
Henckels 2012, p. 255.
- 87.
S. Schill, Deference in Investment Treaty Arbitration: Re-Conceptualizing the Standard of Review through Comparative Public Law. http://ssrn.com/abstract=2095334. 28 June 2012, p. 27. Accessed 20 November 2014.
- 88.
Krajewski, above n 16, p. 3.
- 89.
Schreuer 2007, p. 92.
- 90.
Dolzer 2005, p. 87.
- 91.
AWG/Suez, above n 36, para 188.
- 92.
International Thunderbird Gaming v. The United Mexican States, UNCITRAL (NAFTA), Arbitral Award of 26 January 2006, Separate Opinion of Prof. T. Wälde. See also Sempra, above n 48, para 301.
- 93.
S. Schill, Fair and Equitable Treatment under Investment Treaties as an Embodiment of the Rule of Law. Global Administrative Law Series, IILJ Working Paper 2006/6, p. 5.
- 94.
Choudhury 2005, p. 297.
- 95.
Dolzer 2005, p. 88.
- 96.
- 97.
See Potestà 2013, pp. 90–93. See also Suez, Sociedad General de Aguas de Barcelona S.A. and Vivendi International S.S. v. The Argentine Republic, ICSID Case No. ARB/03/19 and AWG Group Ltd. v. The Argentine Republic, UNCITRAL Case, Decision on Liability of 30 July 2010, Dissenting Opinion of Arbitrator Pedro Nikken, para 3, arguing against the possibility of including this item in the FET.
- 98.
Tecmed, above n 74, para 154. See also Sempra, above n 48, para 299. Contra Gazzini 2009, p. 117.
- 99.
Treaty between United States of America and the Argentine Republic Concerning the Reciprocal Encouragement and Protection of Investment, 14 November 1991.
- 100.
El Paso Energy International Company v. The Argentine Republic, ICSID Case No. ARB/03/15, Award of 31 October 2011, para 355. See also AWG/Suez, above n 36, para 222. In this case, the Tribunal simply observed that “[i]n an effort to develop an operational method for determining the existence or non-existence of fair and equitable treatment, arbitral tribunals have increasingly taken into account the legitimate expectations that a host country has created in the investor and the extent to which conduct by the host government subsequent to the investment has frustrated those expectations”.
- 101.
EDF v. Romania, ICSID Case No. ARB/05/13, Award of 8 October 2009, para 216.
- 102.
Saluka v. Czech Republic, UNCITRAL, Partial Award of 17 March 2006, para 301.
- 103.
Hirsch 2011, p. 786.
- 104.
UNCTAD, Fair and Equitable Treatment. A Sequel. Series on Issues in International Investment Agreements II. UN Publication, 2012, p. 63. New York, Geneva.
- 105.
- 106.
Vivendi II, above n 53, para 7.4.19.
- 107.
CMS, above n 51, para 277. See also Schreuer 2005b, p. 374.
- 108.
El Paso, above n 100, para 371.
- 109.
Doak Bishop and Aguirre Luzi 2005, p. 432.
- 110.
Law No 25.561 of 6 January 2002.
- 111.
CMS, above n 51, para 275.
- 112.
Ibid., para 274.
- 113.
LG&E, above n 52, para 125.
- 114.
Ibid., para 131. This conclusion echoes the very demanding, and much criticized, standard developed in Tecmed (para 154). Douglas observed that “[t]he Tecmed ‘standard’ is not a standard at all; it is rather a description of perfect public regulation in a perfect world, to which all States should aspire but very few (if any) will ever attain”. See Douglas 2006, p. 28.
- 115.
Enron, above n 63, paras 266–268.
- 116.
This approach seems to reflect what Crema convincingly described as the international investment regime’s cultural bias against domestic regulation. Indeed in this framework “excessive domestic regulation, discriminatory or not, unfair or not, is in any case problematic: it is a local, particularistic obstacle to the bigger game of reallocating resources in a better way for the good of a greater number of persons”. See Crema 2014, pp. 60–61.
- 117.
El Paso, above n 100, para 373.
- 118.
- 119.
See recently Bertoli and Crespi Reghizzi 2014, p. 36.
- 120.
- 121.
Total S.A. v. The Argentine Republic, ICSID Case No. ARB/04/01, Decision on Liability of 27 December 2010, para 129.
- 122.
Steele 2005, p. 303.
- 123.
CJEU, Case C-245/81, Edeka Zentrale AG v Germany [1982], ECR 2745, para 27; CJEU, Case C-52/81, Offene Handelsgesellschaft in Firma Werner Faust v Commission, [1982], ECR 3745, para 27; CJEU, Joined Cases 424-425/85, Cooeperative Melkproducentenbedrijven Noord-Nederland BA (Frico) and Others v Voedselvoorzienings In—en Verkoopbureau [1987], ECR 2755, para 33. See generally Craig 2006, pp. 635–639; Tridimas 2006, pp. 273–280.
- 124.
LG&E, above n 52, para 133.
- 125.
Enron, above n 63, para 265.
- 126.
CMS, above n 51, para 277.
- 127.
- 128.
Continental Casualty Company v. The Argentine Republic, ICSID Case No. ARB/03/9, Award of 5 September 2008, para 261.
- 129.
Ibid., paras 376–377 (emphasis in the original).
- 130.
Total, above n 121, para 117.
- 131.
Ibid., para 121.
- 132.
Ibid., para 122.
- 133.
Arena 2011, pp. 515–516.
- 134.
Krajewski 2012, p. 366.
- 135.
Sempra, above n 48, para 304; Enron, above n 63, para 268. The only exception in this regard is the LG&E decision, which recognized the economic hardship and “certain political and social realities that may have influenced the Government’s response to the growing economic difficulties”, but considered that Argentina “went too far” (para 139).
- 136.
CFI, Case T-155/99, Dieckmann & Hansen [2001], ECR II-3143; See Craig 2006, pp. 639–641.
- 137.
Ibid., para 81.
- 138.
Wade and Forsyth 2000, p. 242.
- 139.
Total, above n 121, para 160.
- 140.
Ibid., para 162.
- 141.
- 142.
See above para 4.4.3.
- 143.
Total, above n 121, para 164. This conclusion is opposite to the one reached in CMS, despite the fact that these two cases concerned the very same measures and the very same situation, as both Total and CMS we shareholders of TGN.
- 144.
R. v. North and East Devon Authority ex p. Coughlan, 1999, LGR703, para 57. Clayton 2003, pp. 98–102 which highlights that the categorization may result over simplistic in the light of a much more complex reality. See also Craig 2006, p. 650 which observes that “[t]he ECJ and the CFI have been rather reluctant to assign a discrete legal label to this exercise. It has therefore been left to commentators to divine the legal test for the courts’ reasoning”.
- 145.
R. v. Secretary of State for Education and Employment, ex p. Begbie, 2000, 1 WLR 1115, para 82.
- 146.
See Quinot 2004, p. 72, which notes that “the ECJ is generally as deferential to administrative discretion, especially in matters regarding policy, as its English counterparts”.
- 147.
Schømberg 2001, p. 150.
- 148.
See Craig 2006, pp. 649–652.
- 149.
Gorraiz Lizarraga et al. v. Spain, Judgment of 27 April 2004, Ap. No. 62543/00 (emphasis added).
- 150.
Dieckmann & Hansen, above n 136, paras 47–56.
- 151.
Contra, although not with regard to the public services sector, see De Luca 2014, pp. 151–152.
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Costamagna, F. (2015). Regulating Public Services and International Investment Law. In: Krajewski, M. (eds) Services of General Interest Beyond the Single Market. Legal Issues of Services of General Interest. T.M.C. Asser Press, The Hague. https://doi.org/10.1007/978-94-6265-063-3_4
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