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Bilateral Immunity Agreements (BIA)
   
Bilateral Immunity Agreements (BIA) are an important aspect of the Bush Administration's policy towards the ICC. Each BIA represents an effort by the Bush Administration to undermine the Rome Statute. Please read below for further information on the meaning of the BIA campaign. BILATERAL IMMUNITY AGREEMENTS (BIA)

US Campaign

The Bush Administration has been conducting a vigorous campaign of trying to conclude bilateral immunity agreements that will remove US nationals from the reach of the Court. On November 22nd, 2006 the White House announced that it had concluded BIAs with The Comoros and Saint Kitts and Nevis, bringing the total to over 100. The administration claims that these agreements meet the requirements of Article 98(2) of the ICC Statute. That article reads:

"The Court may not proceed with a request for surrender which would require the requested State to act inconsistently with its obligations under international agreements pursuant to which the consent of a sending State is required to surrender a person of that State to the Court, unless the Court can first obtain the cooperation of the sending State for the giving of consent for the surrender."

The United States is pressing on countries a draft text that would prevent them from delivering any of a broad group of persons—including both US and non-US nationals—to the ICC. "Persons" are defined in the agreement as,

"[C]urrent or former Government officials, employees (including contractors), or military personnel or nationals of one Party."

The US says that this agreement is authorized by Article 98(2). In fact, Article 98(2) only addresses treaties between countries covering persons that they have sent to each other on official business. The Article's wording explicitly requires the existence of a "sending state" relationship, such as when US military and civilian personnel are sent to a receiving state by the US government pursuant to Status of Forces or Status of Mission agreements (SOFAs or SOMAs). Such treaties often say that if such a person commits a crime in a country where he or she has been sent, he or she is to be returned to the sending country.

While many people have the impression that Article 98(2) was drafted by the US to create a loophole from the jurisdiction of the ICC, it actually grew out of the concerns of many states that their existing obligations under surrender agreements, especially SOFAs and SOMAs could conflict with their obligation to cooperate with the ICC. Therefore, parallel to Article 98(1), which addresses conflicts between the Statute and diplomatic immunity, Article 98(2) was developed to resolve potential conflicts in other kinds of situations where individuals have entered a state's territory on official US business, whether pursuant to a SOFA, SOMA, or perhaps even an extradition agreement.

The agreement the United States wants is not about the conduct of official business. It applies to any of a wide variety of persons who may be on the territory of either party for any purpose at any time. Therefore, the Rome Statute does not authorize these agreements and by adhering to them the countries will violate their obligations to the Court under the Statute.

Although the US has said that it is not applying pressure on states to sign non-surrender agreements, some US government officials have indicated that a state's unwillingness to sign could affect US support for its entry into NATO and lead to the cut off of US military aid. While some officials have argued that the administration is obligated by the American Servicemembers' Protection Act (ASPA) to withhold military aid from states parties that do not conclude such agreements, administration Spokesperson Reeker has acknowledged that the ASPA "does not prevent the United States from providing military assistance to any country when the president determines that such assistance is important to the national interests." There have been reports in the media and by foreign officials and NGOs that threats have been made toward smaller countries to cut off non-military aid as well.

In a June 30, 2003 letter to Secretary Powell, Human Rights Watch noted many examples of American diplomats going far beyond the provisions of the American Servicemembers' Protection Act (ASPA) to pressure small countries.

  • Croatia: US Ambassador Lawrence Rossin recently published an article in Croatia (it is on the US Embassy website) raising questions about the viability of Croatia's accession to NATO if Zagreb does not sign a bilateral immunity agreement.
  • Bahamas: US Ambassador Richard Blankenship publicly warned that if the Bahamas did not support the US position on the ICC, a significant amount of US aid would be withheld, including aid for paving and lighting an airport runway.
  • The Caribbean Community (CARICOM): On May 23, it was reported that US Assistant Secretary of State Stephen Rademaker told foreign ministers of the CARICOM that they would lose the benefits of the New Horizons program if they did not sign agreements. The program, originally conceived to provide hurricane relief to countries at risk from tropical storms, now includes rural dentistry and veterinary programs.
  • Comoros: According to a Comorese diplomat, the United States informed his country that a previously promised USAID project has been relocated to Djibouti following the latter's signing of a bilateral agreement.
  • Niger: According to a senior Ministry of Foreign Affairs official, the United States threatened to suspend cooperative development projects if Niger does not sign a bilateral agreement.
  • Honduras: Government officials and legislatures stated that the United States threatened important non-military assistance to Honduras if an agreement was not ratified by July 1.
  • Bosnia: Before Bosnia's signature and subsequent ratification of an agreement, Bosnian Foreign Minister Mladen Ivanic said that the US message was that it would be "very difficult to continue military and other assistance" if Bosnia did not sign. Bosnia was reported to have been told that the Department of State would review "dispensable programs," including economic aid.

HRW also pointed out cases where U.S. pressure is chilling state interest in ratifying the ICC treaty:

  • The Philippines: According to Philippine government officials, quoted in the local media, the United States has linked $30 million in additional military assistance to prevent Manila from ratifying the ICC Treaty.
  • Georgia: Government sources told HRW that ratification of the ICC Treaty is stalled in the President's office as "a direct consequence of US pressure." Georgia has already signed an immunity agreement.
US BIA Team

There is a core group within the State Department that has consistently been at the forefront of the US campaign against the ICC. This team has been assembled by John Bolton, the Undersecretary for Arms Control and International Security. It has been used to staff the delegations that negotiate bilateral immunity agreements with state parties to the Rome Statute. From the beginning of the Bush Administration, Mr. Bolton has been given the authority to develop and pursue the US policy of hostility towards the ICC. This reflects a political decision by the Administration to satisfy the demands of an important part of the President's political base. Mr. Bolton represents this constituency in the Administration. In response to the approach of the July 1st deadline established by the American Servicemembers Protection Act for cutting off military assistance to countries that do not sign the immunity agreements, the US has called on Bolton's team with greater frequency. Notable and senior members include Patricia McNerney and Steven Rademaker, who have served as republican staff members in the Senate Foreign Relations Committee and the House International Relations Committee, respectively. Attached is a more detailed overview of the team's membership. The exact membership may be larger than this initial list. We will revise it as more information becomes available.

Recent Developments

  • In an effort to stave off criticism on U.S. efforts to sign a bilateral immunity agreement (BIA) with Kenya, Amb. William Bellamy offers insight on the current U.S. position on BIAs. Click here for commentary from Amnesty International, Parliamentarians for Global Action, and analysis on BIA agreements by former U.S. Ambassador-at-Large for War Crimes Issues, David Scheffer.
  • As of May 3, 2005, the US Government reported 100 agreements. Citizens for Global Solutions reports that about $6.2 million is still being withheld from U.S. allies. See Breakdown of Countries Concluding and Refusing to Conclude BIAS, including amount of funds at stake.
  • Click here for an excellent November 26, 2005 editorial on the effects that BIAs in combination with the American Servicesmembers Protection Act and the Nethercutt Amendment on countries in Latin America.
  • CICC reports that as of May 18, 2005, the US State Dept reports 100 bilateral immunity agreements, with over 91 publicly known. 45 countries have publicly refused signing, and 57 of 99 States Parties to the ICC Statute have not signed (of which 21 have lost US aid). See Status of US Bilateral Immunity Agreements.
  • On July 1, 2003, the President announced suspension in military aid to 35 state parties to the ICC. Since that time, the President has announced waivers for the ASPA prohibition on US military assistance to numerous ICC parties.
  • In response to the European Union common policy opposing bilateral immunity agreements (BIAs) and continued difficulties faced by the US in convincing countries to sign on, in June 2003 "[t]he Bush administration charged the European Union with actively undermining US efforts to shield Americans from prosecution by the International Criminal Court and warned that the impact on transatlantic relations will be "very damaging" if the EU does not stop." See Washington Post.

Countries Concluding Bilateral Agreements or Executive Agreements

Please note that in the following table:

  • "Agreement in Force" indicates ratification of BIA or signature of executive agreement
  • "Permanent Waiver" indicates that President Bush has declared that the country will continue to receive aid and is contingent on the continuation in force of the BIA
  • "Reciprocal" indicates that the US has agreed not to surrender nationals of this country to the ICC
  • "Unconfirmed" indicates that the agreement has not been diclosed by the State Department or the country requested that the agreement not be revealed
  • Many governments have publicly indicated they are unlikely to sign such an agreement, some of which include Brazil, Canada, Costa Rica, Croatia, France, Finland, Germany, Mali, Malta, Namibia, Paraguay, Peru, Samoa, South Africa, Tanzania, Trinidad and Tobago, and Venezuela.
Country Signatory/State Party to Rome Statute Date of Agreement Details
Afghanistan State Party 9/20/02 Agreement in force; Permanent waiver
Albania State Party 5/2/03 Agreement in force; Permanent Waiver
Angola Signatory 5/2/05
Antigua and Barbuda State Party 9/30/03 Permanent Waiver
Azerbaijan Non State Party 2/26/03 Reciprocal
Bahrain State Party 2/6/03
Bangladesh Signatory 8/17/03 Reciprocal
Belize State Party 12/03 Permanent waiver
Benin State Party 9/05 Agreement in Force; Permanent waiver
Bhutan Non State Party 5/2/03 Agreement in force
Bolivia State Party 5/19/03 Not yet ratified; Originally ASPA military aid cut off waived on July 1, 2003 until January 1, 2004
Bosnia and Herzegovina State Party 5/16/03 Agreement in force; Permanent Waiver
Botswana State Party 6/30/03 Agreement in force; Permanent Waiver
Brunei Non State Party 2003 Unconfirmed
Burkina Faso State Party   Permanent Waiver
Burundi State Party 11/29/04 Agreement in force; Permanent Waiver
Cambodia State Party 6/27/03 Agreement in force; Permanent waiver
Central African Republic State Party 3/04 Permanent waiver
Chad State Party 2003
Colombia State Party 9/16/03 Agreement in force; Permanent Waiver
The Comoros State Party 6/30/04 Agreement in force; Permanent Waiver
Democratic Republic of Congo State Party 4/2/03 Agreement in Force; Permanent waiver
Congo-Brazzaville (Republic of the Congo) State Party 2004 Permanent Waiver
Cote d'Ivoire Signatory 7/03
Djibouti State Party 1/24/03 Permanent Waiver
Dominica State Party   Permanent Waiver
Dominican Republic State Party 9/16/02 Agreement in force; Permanent Waiver
East Timor State Party 8/26/02 Agreement in force; Permanent Waiver
Egypt Signatory 3/5/03 Unconfirmed
El Salvador Non State Party 10/25/02 Agreement in force
Eritrea Signatory 7/8/04
Ethiopia Non State Party 10/8/04
Fiji State Party 11/03 Permanent waiver
Gabon State Party 5/2/03 Permanent waiver
Gambia State Party 10/5/02 Agreement in force; Permanent waiver
Georgia State Party 2/10/03 Reciprocal; Agreement in force; Permanent waiver
Ghana State Party 5/2/03 Agreement in force; Permanent Waiver
Guinea State Party 9/03 Permanent Waiver
Guyana State Party 12/13/03; 11/29/04 Agreement in force; Permanent Waiver
Haiti Non State Party/Signatory
Honduras State Party 9/19/02 Agreement in force; Permanent waiver
India Non State Party 12/26/02 Reciprocal; Agreement in force
Israel Signatory 8/4/02 Reciprocal; Agreement in force
Kazakhstan Non State Party 9/22/03 Agreement in force
Kuwait Signatory 11/20/02 Unconfirmed
Kyrgyzstan State Party 12/8/03
Laos Non State Party 2003
Liberia State Party 10/8/03; 11/29/04 Agreement in force; Permanent Waiver
Macedonia, FYR State Party 6/30/03 Agreement in force; Permanent waiver
Madagascar Signatory 5/2/03
Malawi State Party 9/20/03 Agreement in force; Permanent Waiver
Maldives Non State Party 5/2/03
Marshall Islands State Party 9/10/02 No waiver
Mauritania Non State Party 9/17/02 Reciprocal; Agreement in force
Mauritius State Party 6/26/03 Agreement must be approved at the parliamentary level before becoming binding; Permanent Waiver
Micronesia Non State Party 9/24/02
Mongolia State Party   Permanent waiver
Montenegro State Party 4/19/07 Reciprocal; Agreement in force
Morocco Signatory   Unconfirmed
Mozambique Signatory 7/14/03
Nauru State Party 2/26/03 Reciprocal; No waiver
Nepal Non State Party 12/31/02 Reciprocal
Nicaragua Non State Party 6/3/03 Reciprocal; Agreement in force
Nigeria State Party 6/3/03 Agreement in force; Permanent Waiver
Pakistan Non State Party 7/21/03
Palau Non State Party 9/13/02
Panama State Party On or before 6/26/03 Agreement in force; Permanent waiver
Papua New Guinea Non State Party
Philippines Signatory 5/13/03 Reciprocal; Agreement in force
Romania State Party 8/1/02 Agreement must be approved at the parliamentary level before becoming binding; ASPA military aid cut off waived on July 1, 2003 until November 1, 2003; 6-month extension on November 1, 2003
Rwanda Non State Party 3/4/03 Reciprocal
Saint Kitts and Nevis State Party 1/31/05 Agreement in force; Permanent Waiver
Senegal State Party 7/03 Permanent waiver
Seychelles State Party 6/03
Sierra Leone State Party 3/31/03 Reciprocal; Agreement in force; Permanent waiver
Solomon Islands Signatory 9/20/03
Sri Lanka Non State Party 11/22/02 Reciprocal
Tajikistan State Party 8/27/02 Reciprocal; Agreement in force; Permanent waiver
Thailand Signatory 6/3/03
Togo Non State Party 6/13/03
Tonga Non State Party 4/2/03
Tunisia Non State Party 2003 Unconfirmed
Turkmenistan Non State Party 2003
Tuvalu Non State Party 1/30/03
Uganda State Party 6/12/03 Reciprocal; Agreement in force; Permanent Waiver
Uzbekistan Signatory 9/18/02
Zambia State Party 7/1/03 Agreement in force; Permanent Waiver

Presidential Waivers Granted

Presidential Determination No. 2008-21, Waiving the Prohibition on the Use of Fiscal Year 2006 Economic Support Funds with Respect to Various Parties to the Rome Statute Establishing the International Criminal Court, June 20, 2008 (Bolivia, Costa Rica, Cyprus, Ecuador, Kenya, Mali, Mexico, Namibia, Niger, Paraguay, Peru, Samoa, South Africa, and Tanzania [FY 2008]).
Memorandum for the Secretary of State, Certification Concerning U.S. Participation in the United Nations-African Union Mission in Darfur Under Section 2005 of the American Servicemembers' Protection Act, March 26, 2008.
Memorandum for the Secretary of State, Waiving Prohibition on United States Military Assistance, August 31, 2007 (Montenegro [permanent]).
Memorandum for the Secretary of State, Waiving the Prohibition on the Use of Fiscal Year 2006 Economic Support Funds with Respect to Various Parties to the Rome Statute Establishing the International Criminal Court, November 28, 2006 (Bolivia, Costa Rica, Cyprus, Ecuador, Kenya, Mali, Mexico, Namibia, Niger, Paraguay, Peru, Samoa, South Africa, and Tanzania [FY 2006]).
Memorandum for the Secretary of State, Waiving Prohibition on United States Military Assistance, November 22, 2006 (Comoros and Saint Kitts and Nevis [permanent]).
Memorandum for the Secretary of State, Waiving Prohibition on United States Military Assistance, October 2, 2006 (Barbados, Bolivia, Brazil, Costa Rica, Croatia, Ecuador, Kenya, Mali, Malta, Mexico, Namibia, Niger, Paraguay, Peru, Samoa, Serbia, South Africa, St. Vincent and the Grenadines, Tanzania, Trinidad and Tobago, and Uruguay [permanent]).
Memorandum for the Secretary of State, Certification Concerning US Participation in the United Nations Stabilization Mission in Haiti Consistent with Section 2005 of the American Servicemembers' Protection Act, June 14, 2004.
Presidential Determination No. 2004-31, Waiving Prohibition on United States Military Assistance, May 26, 2004 (Burkina Faso and Dominica [permanent]).
Presidential Determination No. 2004-27, Waiving Prohibition on United States Military Assistance to Parties to the Rome Statute Establishing the International Criminal Court, April 6, 2004. (Central African Republic and Guinea [permanent].)
Presidential Determination No. 2004-17, Waiving Prohibition on United States Military Assistance to Parties to the Rome Statute Establishing the International Criminal Court, December 30, 2003. (Belize, Former Yugoslav Republic of Macedonia, Panama, and Fiji [permanent])
Presidential Determination No. 2004-9, Waiving Prohibition on United States Military Assistance to Parties to the Rome Statute Establishing the International Criminal Court, November 21, 2003. (Bulgaria, Estonia, Latvia, Lithuania, Slovakia, and Slovenia, with respect to military assistance for only certain specific projects the President has decided are needed to support the process of integration of these countries into NATO, or to support Operation "Enduring Freedom" or Operation "Iraqi Freedom.")
Presidential Determination No. 2003-11, Waiving Prohibition on United States Military Assistance to Parties to the Rome Statute Establishing the International Criminal Court, November 1, 2003. (Angigua and Barbuda, Bostswana, East Timor, Ghana, Malawi, Nigeria, and Uganda [permanent]; Romania [six months])
Presidential Determination No. 2004-30, Waiving Prohibition on United States Military Assistance to Parties to the Rome Statute Establishing the International Criminal Court, October 6, 2003. (Colombia [permanent])
Presidential Determination No. 2003-40, Waiving Prohibition on United States Military Assistance to Parties to the Rome Statute Establishing the International Criminal Court, September 24, 2003. (Afghanistan, Democratic Republic of the Congo, Georgia, and Honduras [permanent])
Presidential Determination No. 2003-28, Waiving Prohibition on United States Military Assistance to Parties to the Rome Statute, July 29, 2003. (Albania, Bosnia and Herzegovina, Djibouti, Mauritius, and Zambia [permanent])
Presidential Determination No. 2003-27, Waiving Prohibition on United States Military Assistance to Parties to the Rome Statute Establishing the International Criminal Court, July 1, 2003. (Gabon, the Gambia, Mongolia, Senegal, Sierra Leone, and Tajikistan [permanent]; Afghanistan, Djibouti, Democratic Republic of Congo, East Timor, Ghana, Honduras, and Romania [November 1, 2003]; Albania, Bolivia, Bosnia-Herzegovina, Botswana, Former Yugoslav Republic of Macedonia, Mauritius, Nigeria, Panama, and Uganda [January 1, 2004])
World Federalist Association Factsheet: Breakdown of Countries Granted Waivers Compared to Those Concluding BIAs

Texts of Bilateral Agreements

Text of agreement between the US and Albania (signed May 2, 2003)
Text of agreement between the US and East Timor (signed August 23, 2002)
Text of agreement between the US and India (signed December 26, 2002)
Text of agreement between the US and Nepal (signed December 31, 2002)
Text of agreement between the US and Philippines (signed May 13, 2003)
Text of agreement between the US and Romania (signed August 1, 2002)
Text of agreement between the US and Uganda (signed June 12, 2003)
Text of agreement between the US and Uzbekistan (signed September 18, 2002, entered into force January 7, 2003)
Proposed text of bilateral immunity agreement with the United States (July 2002)

International Reaction

Click here to read about the international reaction to US efforts to conclude bilateral immunity agreements.


Official US Statements

Ambassador Larry Napper, OSCE Human Dimension Implementation Meeting, Warsaw, Poland, October 8, 2004, responded to comments on the US bilateral immunity campaign, particularly referencing the EU position on the ICC.
Adam Ereli, Deputy Spokesman, Department of State Daily Press Briefing, November 3, 2003, answering a question as to whether national interest waivers will be granted for countries contributing to the Iraq war or war on terror.
John R. Bolton, Under Secretary for Arms Control and International Security, Remarks at the American Enterprise Institute, "American Justice and the International Criminal Court," November 3, 2003
Suspension of Military Assistance to Colombia (Taken Question), Office of the Spokesman, September 30, 2003
Lincoln P. Bloomfield, Jr., Assistant Secretary for Political-Military Affairs, Remarks to the Parliamentarians for Global Action, Consultative Assembly of Parliamentarians for the ICC and the Rule of Law United Nations, New York, September 12, 2003
Secretary Rumsfeld Is Interviewed on TV Caracol in Bogota, Columbia, as Released by the Department of Defense, August 19, 2003, discussing BIAs and Colombia
Remarks of Lincoln Bloomfield, Assistant Secretary for Political-Military Affairs (reporting to John Bolton), July 17, 2003, explaining the US approach to the ICC and BIAs.
Excerpt from Interview with Secretary Powell by the South African Broadcasting Corp., July 10, 2003.
Richard Boucher, Spokesman, Department of State Daily Press Briefing, July 3, 2003, reacting reports of suspension of military aid.
Richard Boucher, Spokesman, Department of State Daily Press Briefing, July 2, 2003, reacting reports of suspension of military aid.
Richard Boucher, Spokesman, Department of State Daily Press Briefing, July 1, 2003, reacting reports of suspension of military aid.
Ari Fleischer, Spokesman, White House Daily Press Briefing, July 1, 2003, reacting to reports that 50 countries had been declared ineligible for military aid.
Richard Boucher, Spokesman, Department of State Daily Press Briefing, June 30, 2003, reacting to question about approach of July 1 ASPA funding cutt-off deadline.
Richard Boucher, Spokesman, Department of State Daily Press Briefing, June 12, 2003, reacting to question about approach of July 1 ASPA funding cutt-off deadline
Philip Reeker, Deputy Spokesman, Department of State Daily Press Briefing, June 10, 2003, reacting to question about reported warning given to EU not to "interfere" in BIA negotiations.
Excerpt from Press Conference with Secretary of State Colin Powell, Bogotý, Colombia, December 4, 2002, explaining Colombia's rejection of the US-proposed bilateral immunity agreement.
News Briefing by Ari Fleischer, White House Press Secretary, October 10, 2002, explaining US dissatisfaction with EU guidlines for Article 98(2) agreements.
Richard Boucher, Spokesman, Department of State Daily Press Briefing, October 1, 2002, reacting to announcement of EU guidlines for Article 98(2) agreements.
President Bush on bilateral immunity agreements, September 30, 2002, remarks prior to discussions with president Alvaro Uribe of Colombia and an exchange with reporters
Press briefing with Pierre-Richard Prosper, U.S. Ambassador-at Large for War Crimes Issues, on progress with bilateral immunity agreements (London, UK), September 24, 2002
Federal News Service, State Department Regular Briefing with Philip Reeker, Deputy Department Spokesman, August 12-13, 2002
U.S. and Romania Sign Article 98 Agreement, Press Statement, Philip T. Reeker, Deputy Spokesman, August 1, 2002
Richard Boucher, Spokesman, Department of State Daily Press Briefing, July 25, 2002, discussing ongoing US negotiation of bilateral immunity agreements
Secretary of Defense Rumsfeld, Defense Department Operational Update Briefing June 26, 2002, discussing US desire to use the Security Council to obtain exemptions for its servicemembers, US pursuit of bilateral immunity agreements, and implying that the Court may somehow be used by terrorists against the US


Legal and Policy Analysis

World Federalist Association Factsheet: Effects of the Article 98 Campaign, December 2003
World Federalist Association Factsheet: Breakdown of Countries, September 23, 2003
CICC documents
Joint Opinion, In the Matter of the Statute of the International Criminal Court and in the Matter of Bilateral Agreements Sought by the United States Under Article 98(2) of the Statute, James Crawford SC, Philippe Sands QC, Ralph Wilde, June 2003
Fédération Internationale des Ligues des Droits de L'Homme (FIDH), No to American Exceptionalism — Under Cover of the War Against Terrorism, a Destructive US Offensive Against the ICC, December 2002, an authoritative view of the campaign from the European perspective
Amnesty International, International Criminal Court: The need for the European Union to take more effective steps to prevent members from signing US impunity agreements, October 10, 2002
Coalition for the International Criminal Court (CICC) Secretariat, Bilateral agreements proposed by US government (a legal analysis), August 23, 2002
Amnesty International, International Criminal Court: US efforts to obtain impunity for genocide, crimes against humanity and war crimes, August 2002
HRW, "United States Efforts to Undermine the International Criminal Court": Article 98 Agreements, August 2, 2002
HRW, "United States Efforts to Undermine the International Criminal Court": Article 98(2) Agreements, July 9, 2002

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