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Boston University International Law Journal

Spring, 1987

Note

*177DIPLOMATIC IMMUNITY: A PROPOSAL FOR AMENDING THE VIENNA CONVENTION TO

DETER VIOLENT CRIMINAL ACTS

Stephen L. Wright

Copyright 1987 by the Trustees of Boston University; Stephen L. Wright

I. INTRODUCTION

The international law of diplomatic immunity[FN1]grants diplomats[FN2]exemption from the civil and

criminal jurisdiction of the state to which the diplomat is sent.[FN3]This customary international law

doctrine[FN4]is codified in the Vienna Convention on Diplomatic Relations[FN5]in article 31.[FN6]As

the population of, *178and violent acts committed by, diplomats is increasing, diplomatic immunity is

eroding deterrence against such crimes.[FN7]The result is heightened international tension which

impairs communication between states.

In 1984, a sequence of events at the Libyan embassy in London[FN8]ended in British police assisting a

suspected murderer, an embassy occupant, to leave the United Kingdom. Diplomatic immunity under

theVienna Convention prevented police from making arrests and initiating criminal prosecution against

the embassy occupants. These events illuminate the major flaw of diplomatic immunity as codified in

the Vienna Convention: the absence of deterrence against criminal acts.

Accordingly, this Note proposes an amendment to the Vienna Convention providing for deterrence

against diplomats' acts of violence. This proposal attempts to not only fulfill diplomatic immunity's

traditional function of preventing harrassment of diplomats,[FN9]but also to better enhance

international communication. To make it as broadly acceptable as possible, the proposal is structured

consistently with the theoretical bases for diplomatic *179 immunity and supported by the legislative

history of the Vienna Convention.[FN10]

Section I of the Note recounts the events at the Libyan embassy in London in 1984. Section II sets forth a

proposal for amending the Vienna Convention to reduce diplomats' criminal conduct, and further

examines the impact the proposal might have had on the Libyan embassy incident. Section IIIdescribes the scope of diplomatic immunity as it currently exists under the Vienna Convention. In

section IV, the Note scrutinizes the widely held view of the nature of the diplomatic process in an effort

to define the limitations on restricting diplomatic immunity. Section V investigates the history behind

the theoretical bases for diplomatic immunity and concludes that the long-run trend is toward a

narrower scope of immunity such as that advocated by the proposal in section I. Section VI applies the

theory of diplomatic immunity to analyze both the proposal for amending the Vienna Convention and

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the Vienna Convention itself, which is found to deviate significantly from its theoretical foundations by

creating an overly broad scope of immunity. Finally, section VII examines the Vienna Convention's

legislative history and other historical facts which support a further restriction of the Vienna

Convention's diplomatic immunity provisions.

II. THE 1984 INCIDENT AT THE LONDON LIBYAN "PEOPLE'S BUREAU""

The events at the London Libyan "People's Bureau" on April 17, 1984, highlight the lack of deterrence

against criminal conduct under the Vienna Convention's diplomatic immunity regime.[FN11]A group of

Libyan protestors opposed to Libyan leader Colonel Muammar el-Qaddafi had assembled before the

People's Bureau to protest Colonel Qaddafi's treatment of students in Libya. The group was acting

peaceably when, without warning, machine gun fire coming from the People's Bureau struck the

crowd.[FN12]The gun fire killed one officer of the police contingent which surrounded the

protestors.[FN13]Ten other persons were injured, five seriously.[FN14]British police *180 immediately

surrounded the embassy to prevent entry and exit. British Home Secretary Leon

Brittan[FN15]demanded that Libya allow British police to enter the building to seek suspects and

forensic evidence,[FN16]but was promptly rebuked by Libyan officials.[FN17]

In response to the British action, the Libyan government retaliated by ordering its police to besiege the

British embassy in Tripoli.[FN18]Thirty-five people, including the British ambassador, were held in the

British embassy.[FN19]With each government holding officials of the other hostage, a stalemate

ensued.[FN20]

Subsequently, British officials determined what legally acceptable alternatives were

available.[FN21]British officials concluded that the alternative most likely to result in capture of thegunman was to order the closing of the People's Bureau and to evaluate each occupant's entitlement to

diplomatic immunity under the Vienna Convention.[FN22]Those not deserving an immune status would

be detained for questioning and possible prosecution.[FN23]This alternative, however, was not

implemented for reasons the British government did not explain.

The Libyan government released twenty-five people from the Tripoli embassy on the day following the

shooting despite lack of progress in *181 intensive negotiations between the two

governments.[FN24]The motivation behind this action is unclear. Negotiations continued and the

Libyan government denied repeated British requests to search the People's Bureau.[FN25]However,

the Libyan government offered to send an investigatory team to London whose work would be followed

by prosecution of any suspects in Libyan municipal courts, an offer the British declined.[FN26]Since no

apparent progress in negotiations had been made, the British broke off relations with Libya and ordered

the occupants of the People's Bureau to leave the United Kingdom within seven days.[FN27]The British

guaranteed all occupants safe passage out of Britain and promised not to inspect their bags.[FN28]

On the eleventh day of the siege at the Libyan People's Bureau, the occupants of the People's Bureau

left Britain under escort from British police.[FN29]Simultaneously, the remaining British diplomatic

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personnel held by the Libyan government left for home.[FN30]In London, British police searched and

questioned the Libyans before their departure.[FN31]British police, however, permitted the Libyans'

bags, one of which allegedly contained the weapon used in the shooting, to be taken out of the United

Kingdom without inspection.[FN32]Subsequent to the departure of its occupants, British

police *182 searched the People's Bureau and discovered weapons.[FN33]

The motivation behind the British decision to grant de facto diplomatic immunity[FN34]to all Libyans in

the People's Bureau regardless of actual diplomatic status is a matter of conjecture. Arguably, British

authorities viewed the risk to the eight thousand British nationals in Libya[FN35]and the encircled

British embassy in Tripoli[FN36]as outweighing their desire to prosecute those alleged to be involved in

the shooting.[FN37]

The British decision can also be explained in light of the language in the Vienna Convention. As both the

United Kingdom[FN38]and Libya[FN39]are signatories *183 to the Vienna Convention, the United

Kingdom was obligated to permit Libya to withdraw its accredited diplomatic personnel free of

interference.[FN40]

The Libyan People's Bureau incident illustrates the Vienna Convention's lack of deterrence against

criminal acts. The immunity from criminal prosecution accorded embassy personnel, in effect,

encourages those individuals who are so inclined to violate the receiving state's laws. For example, in

the United States, police in the New York City and Washington, D.C. areas frequently report encounters

with persons engaged in crime who are accorded some degree of diplomatic immunity.[FN41]In

London from 1974 to mid-1984, diplomatic immunity prevented prosecution in 546 cases where

conviction, in a non-diplomatic context, would have included a prison sentence of at least six

months.[FN42]Numerous other instances of criminal conduct shielded from prosecution by diplomatic

immunity have been documented.[FN43]

The Vienna Convention grants receiving states the right to declare a diplomat persona non grata as the

sole means of protection against a diplomat suspected of engaging in criminal conduct. Persona non

grata declarations compel the sending state to recall that individual or to terminate his or her diplomatic

functions which results in the individual being forced to leave the receiving state.[FN44]However, in

instances of murder, such as at the Libyan People's Bureau in London, persona non grata declarations

are inappropriate*184 in comparison to the relatively severe treatment of those convicted for the same

crime in non-diplomatic immunity settings.

The alternative to the persona non grata declaration is the severance of relations between the

concerned states. The United Kingdom pursued this course of action in the Libyan People's Bureauincident.[FN45]The Vienna Convention, however, did not intend to cause the interruption of

international communication which resulted from this incident: rather, it intended to enhance

international relations. Therefore, an alternative which provides a means for avoiding such a disruption

in communication while reducing the incidence of criminal conduct would benefit the international

community. The proposal set forth in the following section attempts to provide such an alternative.

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