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Ukraine, International Law, and the Political Economy of Self-Determination

Published online by Cambridge University Press:  06 March 2019

Abstract

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This article attempts to destabilize the assumption that self-determination can be restricted to a “purely legal” analysis of the sort to which most international legal scholars have conventionally confined themselves. It does so by focusing upon the conditions under which the legal rhetoric of collective self-determination came to be mobilized during the course of Russia's incursion into and subsequent annexation of Crimea in early 2014, as well as its ongoing deployment in the context of Russia's political, military, and financial support for self-declared “people's republics” in Donetsk and Luhansk. After briefly examining legal arguments in support of and in opposition to Russia's actions, the article argues that the Ukraine crisis problematizes the traditional reluctance of international lawyers to engage with the complex, and often counterintuitive, articulations of self-determination offered by participants in armed conflict. Recourse to self-determination cannot be understood without appreciating the concrete politico-economic pressures in response to which states are created and recreated. The alternately “lofty” and “cynical” formulations of self-determination that have characterized the ongoing struggle in and over Ukraine can only be understood in light of protracted competition between rival class projects that generate significantly different visions of world order. This compels us to confront the class dimensions of the concept of collective self-determination rather than continuing to conceive it as a purely national, or ethno-national, project of recognition or emancipation.

Type
Research Article
Copyright
Copyright © 2015 by German Law Journal GbR 

References

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** Nothing in the foregoing paragraphs [about the principle of equal rights and self-determination of peoples] 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 color.Google Scholar

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12 Classic studies of this development (and of its various ramifications) include Thomas M. Franck, The Emerging Right to Democratic Governance, 86 Amer. J. Int'l L. 46 (1992); Roth, Brad R., Governmental Illegitimacy in International Law (1999); Democratic Governance and International Law (Gregory H. Fox & Brad R. Roth eds., 2000). For recent reconsideration, see, e.g., Steven Wheatley, The Democratic Legitimacy of International Law (2010); d'Aspremont, Jean, 1989-2010: The Rise and Fail of Democratic Governance in International Law, in Select Proceedings of the European Society of International Law: Volume 3, at 61 (James Crawford & Sarah Nouwen eds., 2012); Marks, Susan, What Has Become of the Emerging Right to Democratic Governance?, 22 Eur. J. Int'l L. 507 (2011); Buchan, Russell, International Law and the Construction of the Liberal Peace (2013). Nico Krisch has raised this point explicitly in the context of recent developments in Ukraine. See Krisch, Nico, Crimea and the Limits of International Law, EJIL Talk! (Mar. 10, 2014), http://www.ejiltalk.org/crimea-and-the-limits-of-international-law/(arguing that:Google Scholar

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14 Although it goes without saying that such nationalism frequently lies at the root of many self-determination claims.Google Scholar

15 For the purposes of this article, I include the city of Sevastopol in my discussion of Crimea. Officially a “city with special status,” and therefore distinct from Crimea under Ukrainian constitutional and administrative law, Sevastopol hosts Russia's Black Sea Fleet and has traditionally been accorded great material and symbolic importance by many Russians, not least because of its crucial role on the eastern front during the Second World War.Google Scholar

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19 Significantly, Vitaly Churkin, Russia's permanent representative to the UN, appeared to make both claims before the Security Council in early March 2014. See S.C. 7124th mtg., U.N. Doc. S/PV.7124 (Mar. 1, 2014); S.C. 7125th mtg.; U.N. Doc. S/PV.7125 (Mar. 3, 2014).Google Scholar

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22 The legal status of the agreement has been questioned widely, with some going so far as to regard it as void ab initio on the grounds that it violates a jus cogens norm of territorial integrity. See, e.g., Gregory H. Fox, The Russia-Crimea Treaty, Opinio Juris (Mar. 20, 2014), http://opiniojuris.org/2014/03/20/guest-post-russia-crimea-treaty/.Google Scholar

23 See, e.g., Roth, supra note 12, at 185-88; Wippman, David, Pro-Democratic Intervention by Invitation, in Fox & Roth, supra note 12, at 293, 297-99; Nolte, Georg, Secession and External intervention, in Secession: International Law Perspectives 65, 79–80 (Marcelo G. Kohen ed., 2006); Corten, Olivier, The Law Against War: The Prohibition on the Use of Force in Contemporary International Law 277-87 (2010). Cf. Crawford, supra note 10, at 40–47; Gray, Christine, International Law and the Use of Force 99 (3d ed. 2008). For exaggerated criticisms that elide the continued centrality of the UN Charter's prioritization of territorial sovereignty, see Christopher J. Le Mon, Unilateral Intervention by Invitation in Civil Wars: The Effective Control Test Tested, 35 N.Y.U. J. Int'l L. & Pol. 741, 743, 745 (2003) (arguing, inter alia, that “effective control” is a “dated principle” that “does not permit extensive flexibility”); Fox, Gregory H., Intervention by Invitation, in The Oxford Handbook of the Use of Force in International Law 816, 835 (Marc Weller ed., 2015) (insisting, rather exaggeratedly, that the UN is “Increasingly unlikely to prefer effective control to democratic legitimacy”).Google Scholar

24 This was precisely one of the points that Ukraine made before the Security Council. See Letter Dated 4 March 2014 from the Permanent Representative of Ukraine to the United Nations Addressed to the President of the Security Council, U.N. Doc. S/2014/152 (Mar. 4, 2014), http://www.un.org/en/ga/search/view_doc.asp?symbol=S/2014/152.Google Scholar

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26 The question of whether Ukraine is a “crisis” is a very real one, as there is much to be said for the view that international responses to developments in Ukraine have confirmed— not undermined—the conventional prohibitions against unilateral military intervention and non-defensive use of force. Nevertheless, the fact that Crimea has effectively been integrated into Russia and that much of Ukraine has been transformed into the site of a Cold War-style proxy war testifies to the scale of its geopolitical repercussions and the scope of its precedential implications.Google Scholar

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29 Yatsenyuk himself is given to stressing Ukraine's “European future,” and to speaking of “the European project of Ukraine.” See, e.g., US Department of State, Press Conference of Prime Minister Arseniy Yatsenyuk and Secretary of State John Kerry, Kiev, Ukraine (Feb. 5, 2015), http://www.state.gov/secretary/remarks/2015/02/237212.htm; Arseniy Yatsenyuk in interview with Matthias Schepp & Christoph Schult, Ukrainian Prime Minister: Putin “Needs New Annexations,” Der Spiegel Online (Dec. 20, 2014), http://www.spiegel.de/international/europe/spiegel-interview-with-ukrainian-prime-minister-arseniy-yatsenyuk-a-1009711.html.Google Scholar

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34 See, e.g., Tolstykh, Vladislav, Reunification of Crimea with Russia: A Russian Perspective, 13 Chin. J. Int'l L. 879, 885-86 (2014) (arguing that Crimea was returned to its “natural state” through incorporation into Russia, and that Ukraine “will not become a part of Europe or the Western world,” because “for this it would have to completely give up its language, religion, history and genetic memory”).Google Scholar

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43 The haste with which the Crimean referendum took place is one of the grounds upon which many have compared it unfavorably with superficially similar referendums in Scotland and Catalonia. See Simpson, Brad, Self-Determination in the Age of Putin, Foreign Policy (Mar. 21, 2014), http://foreignpolicy.com/2014/03/21/self-determination-in-the-age-of-putin/.Google Scholar

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46 For a comparison of the Abkhazian and South Ossetian cases with that of Kosovo, partly with a view to undermining widespread claims that they are of an essentially sui generis character, see Rein Müllerson, Precedents in the Mountains: On the Parallels and Uniqueness of the Cases of Kosovo, South Ossetia and Abkhazia, 8 Chin. J. Int'l L. 2, 3–4, 24 (2009). See also Tancredi, Antonello, Neither Authorized nor Prohibited? Secession and International Law After Kosovo, South Ossetia and Abkhazia, 18 Ital. Y.B. Int'l l. 37 (2008); Ryngaert, Cedric & Sobrie, Sven, Recognition of States: International Law or Realpolitik? The Practice of Recognition in the Wake of Kosovo, South Ossetia, and Abkhazia, 24 Leiden J. Int'l L. 467 (2011); Kosovo: A precedent? —The Advisory Opinion and Implications for Statehood, Self-Determination and Minority Rights (James Summers ed., 2011); Self-Determination and Secession in International Law (Christian Walter, Antje von Ungern-Sternberg & Kavus Abushov eds., 2014). For the view that Turkey's invasion of Cyprus in 1974 is an illuminating analogue to Russia's recent actions in Crimea, see further Jure Vidmar, The Annexation of Crimea and the Boundaries of the Will of the People, 16 German L.J. 365 (2015).Google Scholar

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48 See, e.g., Dolidze, Anna, How Well Does Russia Speak the Language of international Law?, Open Democracy (Feb. 6, 2015), https://www.opendemocracy.net/od-russia/anna-dolidze/haw-well-does-russia-speak-language-of-international-law; Dolidze, Anna, The Non-Native Speakers of International Law; The Case of Russia, 15 Balt. Y.B. Int'l L. (forthcoming 2015), available at: http://papers.ssrn.com/sol3/papers.cfm?abstract_id=2523633 (last visited May 1, 2015).Google Scholar

49 I have focused on two states (Ukraine and Russia) and one set of sub-state actors (Crimea and the self-proclaimed “people's republics” of Donetsk and Luhansk). I have done so on account of the fact that these actors have been most directly involved in the conflict in Ukraine. It goss without saying, though, that the analysis can be extended to include a variety of other actors, not least the United States and European Union.Google Scholar

50 Weitz, Eric D., Self-Determination: How a German Enlightenment Idea Became the Slogan of National Liberation and a Human Right, 120 Amer. Hist. Rev. 462, 469 (2015). Note, though, that there is currently no genuinely persuasive genealogy of the concept of collective self-determination. Indeed, attempts to trace the concept's pedigree have tended to be rather sketchy to date. For a telling example from a doyen of international legal studies, see Brownlie, Ian, An Essay in the History of the Principle of Self-Determination, in Grotian Society Papers 1968: Studies inthe History of the Law of Nations 90 (C. H. Alexandrowicz ed., 1970).Google Scholar

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52 For classic discussion of this quandary, see Jennings, Ivor, The Approach to Self-Government 56 (1956) (arguing that the notion of self-determination, or “let the people decide,” is “ridiculous because the people cannot decide until somebody decides who are the people”), I do not address here any number of other criticisms that have been levelled against the concept of self-determination, particularly the notion of “peoplehood” upon which it is premised. For strong discussion of the difficulty of defining “peoples” from an especially pertinent but generally neglected perspective, see S. James Anaya, Indigenous Peoples in International Law 100-03 (2d ed. 2004). Cf. Luis Rodriguez-Piñero, Indigenous Peoples, Postcolonialism, and International Law: The ILO Regime (1919–1989) (2005); Coulthard, Glen Sean, Red Skin, White Masks: Rejecting the Colonial Politics of Recognition (2014). For more general discussion of the theoretical paradoxes of self-determination in constitutional and international theory, see Oklopcic, Zoran, The Idea of Early-Conflict Constitution-Making: the Conflict in Ukraine Beyond Territorial Rights and Constitutional Paradoxes, 16 German L.J. 658 (2015).Google Scholar

53 Wilson began to lean upon a weak form of self-determination only after it became clear that subject nationalities were interpreting demands for representative government in stronger terms than had initially been assumed. See Cassese, supra note 31, at 14–23; cf. Thomas D. Musgrave, Self-Determination and National Minorities 23–24 (1997). For a broader reconstruction of the rivalry, see Arno J. Mayer, Wilson vs. Lenin: Political Origins of the New Diplomacy, 1917-1918 (1964).Google Scholar

54 See Cassese, supra note 31, at 44–45. See also Quigley, John, Soviet Legal Innovation and the Law of the Western World 133-71 (2007); Bowring, Bill, Positivism versus Self-Determination: The Contradictions of Soviet International Law, in International Law on the Left: Re-examining Marxist Legacies 133 (Susan Marks ed., 2003); Newton, Scott, Law and the Making of the Soviet World: The Red Demiurge 216-40 (2015).Google Scholar

55 For a strong articulation of this view, see Moyn, Samuel, The Last Utopia: Human Rights in History 84–119 (2009).Google Scholar