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The Legacy of the ECCC

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The Extraordinary Chambers in the Courts of Cambodia

Part of the book series: International Criminal Justice Series ((ICJS,volume 6))

Abstract

Against the backdrop of theorizing the construction of legacies the focus here is on tracing the interest in legacy at the ECCC and in the Cambodian context in lieu of assessing or measuring the effectiveness of the Tribunal per se. To this end, the emphasis is placed on elucidating the role of the ECCC as temporary institution and legacy leaver and the developed legacy program. By contributing an innovative analysis, the chapter sheds light on the already ongoing legacy formation and the struggle over the power of interpretation. There was an early impetus to pursue legacy at the ECCC, which however got caught up in a political tussle about ownership of the narrative on legacy, and meaning making and funding, and eventually was largely abandoned as a result. The Tribunal appears to have hesitantly or ambiguously embraced its role as legacy leaver as legacy engagement has accelerated and decelerated in Cambodia over the past few years in light of the politicization of legacy. The contestation of meaning about legacy and what the ECCC could and should leave behind provides a window into the broader contestation and the normative significance of the construction of meaning in Cambodia.

The author is Postgraduate Researcher, Department of International Relations, London School of Economics and Political Science (LSE).

Thank you to Mark Hoffman, Dave Rampton, Keith Raynor and Michelle Staggs Kelsall, and to the editors of this volume, Simon Meisenberg and Ignaz Stegmiller, for comments on earlier draft versions.

Special thanks go to all interviewees for being so generous with their time. All staff and former staff from the ECCC and other officials, quoted anonymously here, have made their comments in their personal capacity, and their remarks do not necessarily represent the views of the ECCC, other organisations, or the United Nations.

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Notes

  1. 1.

    ECCC, ‘Completion Plan’, March 2014, available at http://ww.eccc.gov.kh/en/eccc-completion-plan-march-2014 (visited 15 June 2015).

  2. 2.

    Judgment, Kaing Guek Eav (Duch) (001/18-07-2007-ECCC-F28), Appeals Chamber, 3 February 2012.

  3. 3.

    Judgment, Nuon Chea and others (002/19-09-2007/ECCC-E313), Trial Chamber, 7 August 2014.

  4. 4.

    For further analysis of the legal basis, authority, and operations of these tribunals, see Schabas 2006.

  5. 5.

    UN Docs S/RES/1503, 28 August 2003; S/RES/1534, 26 March 2004.

  6. 6.

    The Mechanism for International Criminal Tribunals was established on 22 December 2010. The ICTR branch in Arusha commenced functioning on 1 July 2012, the ICTY branch commenced functioning on 1 July 2013. See UN Doc. S/RES/1966, 22 December 2010, and Mechanism for International Criminal Tribunals Statute. See also Agreement between the United Nations and the Government of Sierra Leone on the Establishment of a Residual Special Court for Sierra Leone, August 2010, and Residual Special Court for Sierra Leone Agreement (Ratification) Act 2011, enacted on 1 February 2012.

  7. 7.

    See Dittrich 2014, 663–691.

  8. 8.

    UN Doc. S/2004/616, 23 August 2004, § 46, at 16.

  9. 9.

    Agreement between the United Nations and the Royal Government of the Kingdom of Cambodia Concerning the Prosecution Under Cambodian Law of Crimes committed during the Period of Democratic Kampuchea, 6 June 2003 (hereafter ECCC Agreement).

  10. 10.

    Law on the Establishment of the Extraordinary Chambers, with inclusion of amendments as promulgated on 27 October 2004, Chapter I, Article 1.

  11. 11.

    ECCC Agreement, supra note 9, Article 1.

  12. 12.

    See http://www.unakrt-online.org/ and http://www.eccc.gov.kh/ (visited 15 June 2015).

  13. 13.

    For an overview, see e.g. the previous chapters in Part I of this volume; Ainley 2003; Fawthrop and Jarvis 2004; Ciorcari 2006; Scheffer 2012.

  14. 14.

    Judgment, Kaing Guek Eav (Duch) (001/18-07-2007/ECCC-E188), Trial Chamber, 26 July 2010.

  15. 15.

    Judgment, supra note 2.

  16. 16.

    Decision, Nuon Chea and others (002/19-09-2007/ECCC-E270/1), Trial Chamber, 14 March 2013.

  17. 17.

    ECCC, ‘Hearings in Case 002/02 Adjourned until January 2015’, 24 November 2014, available at http://www.eccc.gov.kh/en/articles/hearings-case-00202-adjourned-until-january-2015 (visited 15 June 2015).

  18. 18.

    Completion issues refer to completion of the mandate and all work prior to actual closure. Residual functions are ongoing legal obligations, such as trials of fugitives, review of sentences, and management of the archives, which will be continued by the so-called residual mechanisms. Legacy has been understood to encompass what the tribunals will leave behind and how this is being planned, preserved and promoted.

  19. 19.

    See e.g. Open Society, ‘Salvaging Judicial Independence: The Need for a Principled Completion Plan for the Extraordinary Chambers in the Courts of Cambodia’, November 2010, available at http://www.opensocietyfoundations.org/sites/default/files/cambodia-khmer-rouge-20101110.pdf (visited 15 June 2015).

  20. 20.

    UN Doc. A/68/532, Request for a Subvention to the Extraordinary Chambers in the Courts of Cambodia, 16 October 2013, § 38.

  21. 21.

    See UN Doc. A768/7/Add. 12, Thirteenth Report of the Advisory Committee on Advisory and Budgetary Questions on the Proposed Programme Budget for the Biennium 2014–15, §32(e).

  22. 22.

    ECCC, ‘Completion Plan’, Revision 1, July 2014, available at http://www.eccc.gov.kh/en/eccc-completion-plan-revision-1 (visited 15 June 2015).

  23. 23.

    Author interviews with UN staff and ECCC staff, personal communication, September 2014.

  24. 24.

    For the SCSL see Dittrich 2014. For comparative analysis see Dittrich 2016.

  25. 25.

    R. Vincent cit. in Unknown, ‘The Legacy of the Khmer Rouge Trials Needs to be Planned’, The Phnom Penh Post, 25 August 2006, available at http://www.phnompenhpost.com/national/legacy-khmer-rouge-trials-needs-be-planned (visited 15 June 2015).

  26. 26.

    See Dittrich 2014.

  27. 27.

    Nmehielle and Jalloh 2006, at 107–124.

  28. 28.

    See ECCC, ‘Legacy’, ECCC DSS Website, available at http://www.eccc.gov.kh/en/dss/legacy (visited 15 June 2015). .

  29. 29.

    T. Kranh, Opening Remarks, The Hybrid Legacies of the Extraordinary Chambers in the Courts of Cambodia Conference, Phnom Penh, 13 September 2012 (hereafter ECCC Legacies Conference).

  30. 30.

    ECCC, Administrative Circular on Establishment of ECCC’s Legacy Advisory Group and Legacy Secretariat, 26 March 2010 (copy on file with the author) (hereafter Administrative Circular March 2010).

  31. 31.

    H. Jarvis, Conference presentation, ECCC Legacies Conference, Phnom Penh, 13 September 2012.

  32. 32.

    Author interviews with ECCC staff and civil society staff, Phnom Penh, September 2012.

  33. 33.

    SCSL, ‘Third Annual Report of the President of the Special Court for Sierra Leone (2005–2006)’, available at http://www.rscsl.org/Documents/AnRpt3.pdf (visited 15 June 2015), at 11.

  34. 34.

    Administrative Circular March 2010, supra note 30.

  35. 35.

    Author interviews with ECCC staff, UN staff and civil society staff, Phnom Penh, 4–15 September 2012.

  36. 36.

    See also Bates 2010.

  37. 37.

    Author interviews with civil society staff and UN staff, phone communications, September 2014.

  38. 38.

    Author interview with ECCC official, Phnom Penh, 14 September 2012.

  39. 39.

    See ECCC, ‘Legacy’, ECCC DSS Website, available at http://www.eccc.gov.kh/en/dss/legacy (visited 15 June 2015).

  40. 40.

    See ECCC, ‘Virtual Tribunal’, ECCC Website, available at http://www.eccc.gov.kh/en/virtual-tribunal (visited 15 June 2015).

  41. 41.

    J. Wallace, ‘Empty Building Represents KRT’s Uncertain Legacy’, The Cambodia Daily, 28 April 2014, available at https://www.cambodiadaily.com/archives/empty-building-represents-krts-uncertain-legacy-57462/ (visited 15 June 2015).

  42. 42.

    ECCC, ‘The Court Report’, Issue 71, April 2014, available at http://www.cambodiatribunal.org/wp-content/uploads/2014/04/Court_Report_1404.pdf (visited 15 June 2015), at 10.

  43. 43.

    L. Olsen, ‘Why Start a Blog?’, ECCC Blog, 4 April 2013, available at http://www.eccc.gov.kh/en/blog/2013/04/04/why-start-blog (visited 15 June 2015).

  44. 44.

    For example, in 2014 officials from the ECCC Office of the Co-Prosecutors coordinated a two-day practical advocacy training exercise on sexual offences for Cambodian defense lawyers, sponsored by International Bridges to Justice.

  45. 45.

    ECCC, ‘Seminar series in international criminal law and Human Rights for Law students’, ECCC Website, available at http://www.eccc.gov.kh/en/articles/seminar-series-international-criminal-law-and-human-rights-law-students (visited 15 June 2015).

  46. 46.

    According to the ECCC website, the memorial project is to be implemented under the framework of Non-Judicial Measures of the ECCC Reparation Programme which is made possible with funding from the German Ministry of Economic Cooperation and Development through the Victim Support Section. See ECCC, ‘ECCC and Ministry of Culture and Fine Arts to sign a Memorandum of Understanding (MoU) to establish a Memorial in Tuol Sleng Museum’, ECCC Website, available at http://www.eccc.gov.kh/en/articles/eccc-and-ministry-culture-and-fine-arts-sign-memorandum-understanding-mou-establish-memoria (visited 15 June 2015).

  47. 47.

    See Barnett and Finnemore 1999, at 699–732.

  48. 48.

    Meierhenrich 2006, at 696–703. .

  49. 49.

    For the following sections see Dittrich 2014, at 664–671; Dittrich 2016.

  50. 50.

    See Nmehielle and Jalloh 2006.

  51. 51.

    Ibid., at 110–11.

  52. 52.

    A. Cassese, Report on the Special Court for Sierra Leone submitted by the Independent Expert Antonio Cassese, 12 December 2006, § 76, at 61.

  53. 53.

    OHCHR, ‘Rule-of-Law Tools for Post-conflict States: Maximizing the Legacy of Hybrid Courts’, 2008, available at http://www.ohchr.org/Documents/Publications/HybridCourts.pdf (visited 15 June 2015), at 4–5.

  54. 54.

    SCSL, ‘Eighth Annual Report of the President of the Special Court for Sierra Leone’, 2010–2011, available at www.rscsl.org/Documents/AnRpt8.pdf (visited 15 June 2015).

  55. 55.

    ICTY, ‘Assessing the Legacy of the ICTY’, ICTY Website, available at http://www.icty.org/sid/10293

    (visited 15 June 2015).

  56. 56.

    ECCC Agreement, supra note 9, Article 26.

  57. 57.

    Author interviews with civil society staff and ECCC staff, Phnom Penh, 11 September 2012.

  58. 58.

    The conference in September 2012 was entitled ‘Hybrid Perspectives on the Legacies of the Extraordinary Chambers in the Courts of Cambodia’ after conversations between conference organizer and the author. The author presented the proposed framework and plural notion of legacies at the conference. It has been reported that the pluralistic approach advocated has been picked up by civil society actors in Cambodia and the notion of legacies in plural has shaped discussions and is used in legacy update meetings (see author interviews with UN staff and civil society staff, phone communication, September 2014).

  59. 59.

    Author interview with ICTY outreach staff, The Hague, 1 July 2011.

  60. 60.

    The below framework and figures are based on Dittrich 2014, at 669–670 and Dittrich 2016.

  61. 61.

    Finnemore and Sikkink 2001, at 392.

  62. 62.

    Searle 1995.

  63. 63.

    See norm circle in Park and Vetterlein 2010, at 20.

  64. 64.

    For this section, see Dittrich 2014, 2016.

  65. 65.

    Tortora 2003, at 107.

  66. 66.

    See Elander 2013, 95–115. For a critical perspective on the representation of ‘victims’, see Kendall and Nouwen 2014, 235–264.

  67. 67.

    See Pham et al. 2009.

  68. 68.

    See e.g. discussion on new memorial, supra note 46.

  69. 69.

    ICTJ, ‘“Leaving a Lasting legacy for Victims”: Practical Workshop for ECCC Victims’ Representatives’, Workshop Report, 10 March 2009.

  70. 70.

    OHCHR, supra note 53, at 6; see also UN Doc. S/2004/616, 23 August 2004, § 17.

  71. 71.

    Reiger 2009, at 4.

  72. 72.

    McCargo 2011, at 621.

  73. 73.

    Ibid., at 618.

  74. 74.

    UN Office of Legal Affairs, Summary of Visit by the Legal Counsel and the Controller to Phnom Penh, Cambodia, 27–29 January 2014, available at http://legal.un.org/ola/lc-02-2014.aspx (visited 15 June 2015).

  75. 75.

    D. Scheffer cit. in Sieff 2013.

  76. 76.

    For a more detailed discussion, see e.g. Hall 2009, 172–253.

  77. 77.

    See P. Long, ‘End corruption or the KRT will lose credibility’, The Phnom Penh Post, 8 September 2008, available at http://www.phnompenhpost.com/national/end-corruption-or-krt-will-lose-credibility (visited 15 June 2015).

  78. 78.

    Hamilton and Ramsden 2004, 115–147.

  79. 79.

    S. Ear, ‘Cambodian “Justice”’, Wall Street Journal, 1 September 2009, available at http://www.wsj.com/articles/SB10001424052970203946904574301583107436174 (visited 15 June 2015).

  80. 80.

    Ainley 2003, at 25–26.

  81. 81.

    McCargo 2011, at 627.

  82. 82.

    See M. Karnavas cit. in D. Otis, ‘Why Cambodia’s Khmer Rouge War Crimes Trial is Endless – and Useless’, The Star, 31 March 2013, available at http://www.thestar.com/news/world/2013/03/31/why_cambodias_khmer_rouge_war_crimes_trial_is_ endless_and_useless.html (visited 15 June 2015).

  83. 83.

    UN Doc. A759/432, Report of the Secretary-General on Khmer Rouge Trials, 12 October 2004, § 27.

  84. 84.

    Sok An, ‘Statement on the Entry into Force of the Agreement between Cambodia and the United Nations on the Khmer Rouge Trials‘, Phnom Penh, 29 April 2005, available at http://www.eccc.gov.kh/en/documents/legal/statement-entry-force-agreement-between-cambodia-and-united-nations-khmer-rouge-tria (visited 15 June 2015).

  85. 85.

    Joint Statement by H.E. Deputy Prime Minister Sok An and Patricia O’Brien, Under-Secretary-General for Legal Affairs, The Legal Counsel, 19 April 2010, available at http://www.unakrt-online.org/articles/joint-statement-he-deputy-prime-minister-sok-and-ms-patricia-o%E2%80%99brien-under-secretary-general (visited 15 June 2015).

  86. 86.

    UN Doc. E/CN4/2004/105, Report of the Special Representative of the Secretary-General for Human Rights in Cambodia, Peter Leuprecht, 19 December 2003, § 19.

  87. 87.

    The UN Secretary-General's Remarks at the Extraordinary Chambers in the Courts of Cambodia, 27 October 2010, available at http://www.unakrt-online.org/articles/un-secretary-generals-remarks-extraordinary-chambers-courts-cambodia (visited 15 June 2015).

  88. 88.

    J. Oeung, Panel, ECCC Legacies Conference, Phnom Penh, 13 September 2014.

  89. 89.

    Author interview with ICTY outreach staff, The Hague, 1 July 2011.

  90. 90.

    Hun Sen cit. in S. White and M. Titthara, ‘Khmer Rouge duo charged’, The Phnom Penh Post, 3 March 2015, available at http://www.phnompenhpost.com/khmer-rouge-duo-charged (visited 15 June 2015).

  91. 91.

    Hun Sen cit. in G. Wilkins, ‘Government rejects charges of political manipulation at ECCC’, The Phnom Penh Post, 29 May 2009, available at http://www.phnompenhpost.com/national/government-rejects-charges-political-manipulation-eccc (visited 15 June 2015).

  92. 92.

    See Sok An, supra note 84.

  93. 93.

    Author interviews with ECCC staff and civil society staff, Phnom Penh, 11 and 12 September 2012.

  94. 94.

    Kranh, supra note 29.

  95. 95.

    Sperfeldt 2013, at 1126.

  96. 96.

    Ibid., at 1124.

  97. 97.

    See J. Drennan, ‘Faltering KR Trial’s Legacy “Uncertain”’, The Phnom Penh Post, 13 March 2013, available at http://www.phnompenhpost.com/national/faltering-kr-trial%E2%80%99s-legacy-%E2%80%98uncertain%E2%80%99 (visited 15 June 2015).

  98. 98.

    See Dittrich 2014, at 689 and Dittrich 2016.

  99. 99.

    See Unknown, ‘The Legacy of the Khmer Rouge Trials Needs to be Planned’, The Phnom Penh Post, available at http://www.phnompenhpost.com/national/legacy-khmer-rouge-trials-needs-be-planned (visited 15 June 2015).

  100. 100.

    See OHCHR Cambodia Country Office, ‘ECCC Legacy Program Overview’, available at http://cambodia.ohchr.org/EN/PagesFiles/ECCC_legacy_program.htm (visited 15 June 2015).

  101. 101.

    See Job Advert ‘Consultant for ECCC Legacy Programme’, available at https://jobs.undp.org/cj_view_job.cfm?cur_job_id=44171 (visited 15 June 2015).

  102. 102.

    W. Smith cit. in L. Crothers, ‘ECCC Aims for Legacy With New Criminal Procedure Code’, The Cambodia Daily, available at http://www.cambodiadaily.com/archives/eccc-aims-for-legacy-with-new-criminal-procedure-code-54935/ (visited 15 June 2015).

  103. 103.

    Ibid.

  104. 104.

    For example, in January 2014 the Khmer Institute of Democracy issued a call for funding for the ECCC legacy. The Concept Notes Seeking Funding explains ‘it is urgent that before the ECCC end, there should be this kind of legacy project because ECCC resources and officers could be good sources while it is still functioning. Other institutions and the ECCC itself have ideas and projects going on. However, the legacy project of the Khmer Institute of Democracy would be the best to take the lead.’ See Khmer Institute of Democracy, Concept Notes Seek Funding, January 2014, available online at http://kidcambodia.org/index.php?option=com_content&task=view&id=59&Itemid=76 (visited 15 June 2015).

  105. 105.

    Author interview with civil society staff, Phnom Penh, 11 September 2012.

  106. 106.

    R. Abbott cit. in S. White, ‘Legal Eagles, Officials Hail Tribunal’s Legacy’, The Phnom Penh Post, 14 September 2012, available at http://www.phnompenhpost.com/national/legal-eagles-officials-hail-tribunal%E2%80%99s-legacy (visited 15 June 2015), at 6.

  107. 107.

    R. Abbott, ‘Preserving the Legacy of the ECCC’, The Phnom Penh Post, 7 April 2010, available at http://www.phnompenhpost.com/national/preserving-legacy-eccc (visited 15 June 2015).

  108. 108.

    Sok An, ‘Remarks to the Meeting on the ECCC of representatives of ASEAN plus India and the Republic of Korea’, 1 April 2011, available at http://www.eccc.gov.kh/en/document/public-affair/remarks-meeting-eccc-representatives-asean-plus-india-and-republic-korea-he-d (visited 15 June 2015).

  109. 109.

    L. Ky, Panel, ECCC Legacies Conference, Phnom Penh, 14 September 2012.

  110. 110.

    See J. Ward, ‘ECCC Staff Instrumental in Transmitting ICJ Judgement on Preah Vihear to Cambodians’, ECCC Blog, 22 November 2013, available at http://www.eccc.gov.kh/en/blog/2013/11/22/eccc-staff-instrumental-transmitting-icj-judgement-preah-vihear-cambodians (visited 15 June 2015).

  111. 111.

    OHCHR, supra note 53, at 9.

  112. 112.

    Author interview with ECCC staff, Phnom Penh, 11 September 2012.

  113. 113.

    Author interviews with ECCC officials, Phnom Penh, 11 September 2012.

  114. 114.

    Author interview with UN staff, Phnom Penh, 4 September 2012.

  115. 115.

    P. Maguire, ‘Cambodia’s Troubled Tribunal’, New York Times, 28 July 2010, available at http://www.nytimes.com/2010/07/29/opinion/29iht-edmaguire.html (visited 15 June 2015).

  116. 116.

    See Tortora 2003, at 107.

  117. 117.

    Author interviews with civil society staff and UN staff, Phnom Penh, 4, 10 and 11 September 2012.

  118. 118.

    Author interviews with ECCC staff and civil society staff, Phnom Penh, 4–15 September 2012.

  119. 119.

    ECCC, ‘Revised Budget 2012–2013’, available at http://www.eccc.gov.kh/sites/default/files/RevisedBudget2012-2013w-annexes.pdf (visited 15 June 2015).

  120. 120.

    See ECCC, ‘ECCC Budget for 2012–2013 Published’, ECCC Website, available at http://www.eccc.gov.kh/en/articles/eccc-budget-2012-2013-published (visited 15 June 2015).

  121. 121.

    D. Scheffer, Opening Remarks, ECCC Legacies, Phnom Penh, 13 September 2012.

  122. 122.

    J. Heenan, Panel and Launch Reception, ECCC Legacies Conference, Phnom Penh, 13 September 2012.

  123. 123.

    Author interview with ECCC staff, Phnom Penh, 12 September 2012.

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    Viviane E. Dittrich

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Dittrich, V.E. (2016). The Legacy of the ECCC. In: Meisenberg, S., Stegmiller, I. (eds) The Extraordinary Chambers in the Courts of Cambodia. International Criminal Justice Series, vol 6. T.M.C. Asser Press, The Hague. https://doi.org/10.1007/978-94-6265-105-0_6

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