{"id":46193,"date":"2020-12-08T09:44:18","date_gmt":"2020-12-08T08:44:18","guid":{"rendered":"https:\/\/www.justiceinfo.net\/46193-icc-trust-fund-headless-chicken.html"},"modified":"2020-12-08T09:44:18","modified_gmt":"2020-12-08T08:44:18","slug":"icc-trust-fund-headless-chicken","status":"publish","type":"post","link":"https:\/\/www.justiceinfo.net\/en\/46193-icc-trust-fund-headless-chicken.html","title":{"rendered":"ICC Trust Fund: The headless chicken"},"content":{"rendered":"

ICC TRUST FUND SERIES - EPISODE 1<\/em><\/p>\n

In 15 years, the International Criminal Court\u2019s Trust Fund for Victims has struggled to develop its strategy. Its budget is opaque. Its output as limited as it is difficult to assess. Through court documents analysis, field reports and interviews, Justice Info opens a series of articles on the functioning of this organ of the ICC that operates without enough direction and results.<\/strong><\/p>\n

<\/p>\n

On paper, the International Criminal Court (ICC)<\/a> gives a central role to victims. Unlike most other iterations of international and ad hoc courts and tribunals, victims can participate in proceedings. Unlike any other, they can not only expect punishment, but also the hope for restoration of injustice through reparations<\/a>.<\/p>\n

When drafters came together to write the court's founding document in 1998 in Rome, there was a strong lobby by NGOs to place victims centrally. Fiona McKay, then working for a\u00a0victims rights organisation, was there insisting to the drafters that the punishment of criminals was not enough. \u201cThere can be no justice until justice is done to the victims. And to deliver justice to the victims, the International Criminal Court must have the capacity to respond to their rights and needs,\u201d she stated. McKay would go on to lead the ICC\u2019s Victims Participation and Reparation Section (VPRS) for 10 years from 2005 to 2015.<\/p>\n

\u201cIt\u2019s a mess\u201d<\/h3>\n

Article 79 of the newly-minted Rome Statute enshrined the ideal of reparations: a new Trust Fund to be set up by states, for the benefit of victims.\u00a0The details, though, were left to be fleshed out later. In 2002, the court\u2019s very first Assembly (ASP) set up the Trust Fund for Victims (TFV), to be funded by voluntary contributions. By 2005 the ASP had established a secretariat and adopted regulations.\u00a0Subsequent generations of court officials have continued to proudly declaim how the ICC is different and how victims are at the heart of its work. The ICC\u2019s first president, Canadian Philipp Kirsch, in 2007 boasted of how the court is different in an academic article for the American University International Law Review.<\/p>\n

\u201cVictims have of course participated in other international proceedings, but largely as witnesses for the prosecutor or for the defense. In the case of the ICC, victims may participate in proceedings even when not called as witnesses. The Court also has the power to order reparations to victims including restitution, compensation, and rehabilitation,\u201d he stressed. In November of that same year Kirsch told the United Nations general assembly that the Trust Fund for Victims was \u201cfully functioning\u201d.<\/p>\n

The Trust Fund is \u201cthe jewel in the crown of criminal justice,\u201d agrees researcher Alina Balta from Tilburg University\u2019s Victimology department. But after spending years of her life looking at the best ways courts can deliver reparations to victims, she\u2019s forced to conclude that \u201cthe actual implementation [of the ICC Trust Fund] hasn't really been thought through\u201d. Lorraine Smith van Lin has worked with multiple victims groups while at the NGO Redress: \u201cI think we all would recognise that there have been huge gaps between what the TVF was set up to do, aspirationally,\u00a0and what it is doing in practice.\u201d Reparations expert Luke Moffett from Queens University Belfast puts it succinctly: \u201cIt\u2019s a mess.\u201d<\/p>\n

A double mandate<\/h3>\n

Apart from the Trust Fund, there is an alphabet soup of ICC organs tasked with relating to victims including the Victims Participation and Reparations Section, the Office of the prosecutor, the Office of Public Counsel for Victims, legal representatives of victims, the Victims and witnesses\u2019 section. The TFV has meanwhile morphed into an entity of its own. Oversight lies officially with an elected Board of Directors. The Secretariat is the \u2018Executive\u2019 arm. It employs several staff members in The Hague and in the field, and its expenses are covered through the ICC\u2019s regular budget.<\/p>\n

The Trust Fund has a double mandate: implementing awards for reparations ordered by the court against someone who has been convicted, known as the reparations mandate; and providing victims in a situation being looked into by the court with physical or psychological rehabilitation and\/or material support, known as the assistance mandate. Reparation orders are issued by judges, but assistance is defined by the TFV alone. Assistance should be funded by voluntary contributions, while reparations should be paid by the convicted where possible. The Trust Fund has become the lead agency for implementation of both reparations and assistance. It has more experience in the latter mandate than the former.<\/p>\n

\r\n\t\t\t\t\t\r\n\t\t\t
Recommended reading<\/div>\r\n\t\t\t
\"\"<\/div><\/a>\r\n\t\t\t\r\n\t\t\tICC desperately seeking prosecutor\r\n\t\t<\/a>\r\n\t\t\r\n\t\t\t\t<\/div><\/span><\/p>\n

Lack of capacity?<\/h3>\n

The court\u2019s notoriously slow pace in trials and convictions has extended to reparations too. With years to anticipate the likely court orders in the handful of actual ICC cases, the TFV has complained that it lacks capacity. Pieter de Baan, the TFV\u2019s Executive Director, says he has been making major changes: \u201cWe have put in place a management layer and a lot of the field capacity that we need to do things. There has been a major transition from 2015\/16 to where we are now. We went from ten to twenty seven persons. And a lot of that has been in creating the capacity to implement both reparations awards and assistance programmes.\u201d<\/p>\n

The Independent Expert Review (IER) recently agreed that, \u201cgiven its limited capacity and resources, issues of prioritisation between the two mandates are bound to emerge\u201d. But critics say the TFV is neither managing its complex obligations, nor using its expertise in assistance to fully serve victims.\u00a0\u201cWe understood that because of the delays in convictions and the length of time that trial proceedings would have taken, that the reparations part of the Trust Fund\u2019s mandate would have come later and it probably would have been much more difficult than envisaged for a number of reasons, logistically and otherwise. But what we've seen is that even the assistance mandate has not filled the gaps that you would expect, that could have been filled,\u201d says Smith van Lin.<\/p>\n

Concerns around the TFV performance have emerged in a number of fora. For example, among judges: a Trial Chamber noted in July 2018, well after conviction in the Al Mahdi case (September 2016) that the TFV \u201chas not yet gained command of its own mandate when operating within the judicial process\u201d. It took the TFV more than two and a half years following the verdict to provide an updated implementation plan. In the first reparations case - Thomas Lubanga \u2013 it was over five years after conviction, albeit with the judges taking the majority of that time to decide on principles. Moffett says the malaise goes wider: \u201cThe court and in particular the Registry does not trust it, because the TFV rocks up in Bangui or Bamako and says we are going to help victims and it has no clue what is going on on the ground.\u201d<\/p>\n

A chronic absence of strategy<\/h3>\n

The independent experts suggest there is a bigger picture:\u00a0a series of issues in \u201cgovernance and management\u201d, \u201cineffective oversight, and the absence of a fundraising strategy\u201d. Combined with underspending and judicial delays, they say \u201cdonor confidence\u201d has been eroded. Pieter de Baan demurs: \u201cWe are operating in quite a competitive donor market but I can say that we have maintained and actually increased the number of donors that we've been working with.\u201d How far a lack of confidence in the Fund\u2019s work permeates the donor community is difficult to assess. But there is a consistent drip of critiques by the oversight bodies within the court and by those set up by the states to check on performance.<\/p>\n

The Fund\u2019s own strategic plan for the period up to 2017 noted that improvement was needed in internal communications, clarity on roles and responsibilities, and an updated human resource structure. But the 2019 evaluation by the court\u2019s independent oversight mechanism stated both that \u201cthese matters remained unresolved\u201d, and that the TFV Secretariat\u00a0faced even more challenges in its work now and had \u201cdifficulty in ensuring effective oversight\u201d.<\/p>\n

The court\u2019s External Auditor also complained in 2018 \u201cthat the TFV\u2019s structure could not ensure the required level of rigour in terms of legal expertise, traceability and documentation, especially given the number of potential victims, depending on the case, when implementing individual reparations awards\u201d. The Auditor stated: \u201cThere was a risk of uncertainties as to the completeness, reality, and accuracy of the commitments, which, unless dealt with, could lead to significant difficulties in terms of certification\u201d. The independent experts say that over the last two years, progress has been made \u201cin remedying this situation\u201d. But the fact this has happened at all, \u201cpoints to insufficient oversight\u201d over the TFV. Mama Kouat\u00e9 Doumbia is the chair of the TFV board, responsible for oversight. She rejected firmly any criticism of the TVF for being slow, rather laying much of the blame at the doorstep of the court whose bureaucracy she says takes too long. \u201cIf the files linger on the court\u2019s desk for them to give their advice on this or that programme that impacts our work, it impacts our capacity and even our competences even if the problem does not come from us\u201d. She pointed also to a new approach - with her now at the TFV board\u2019s helm - where the board was working on ways to speak more directly with the registry to hurry things along.<\/p>\n

The critique on fundraising<\/h3>\n

The Fund\u2019s failure to develop a general strategy document after 2017, and its lack of fully defined guidelines or principles to be followed in deciding on reparations or assistance projects cannot have inspired confidence. There are also no compilations of best practices and lessons learnt from implementation of the two mandates. The Committee of Budget and Finance has invited the court to start working, as soon as possible, on its full policy and framework on the reparation process.<\/p>\n

Another curious lacuna identified in several reports\u00a0has been the Fund\u2019s own fundraising efforts. Although this was seen as a critical area back in 2016, it's only this year that a fundraising strategy has been developed after appointing a Fundraising and Visibility Officer during 2019. The CBF has recommended developing approach to private fundraising, a call echoed by the independent experts: \u201cThe TFV should develop as soon as possible a comprehensive and effective fundraising strategy that includes as targets private donors (e.g. corporations and large foundations and non-governmental organisations)\u2026The strategy should further anticipate engagement with civil society organisations, aiming to benefit from their position as multipliers for the purpose of obtaining additional funds for the TFV.\u201d<\/p>\n

De Baan says this is now in hand: \u201cWe are developing a strategy to bring in private donors, working, again, in a donor climate which is not really helpful to anybody trying to get things done these days because of the Corona pandemic. We are investing quite significantly - and even more now than before - and making connexions to donors, making sure that they are on board. In trying, as you've seen, to come up with some innovative ideas on how to increase our revenue.\u201d<\/p>\n

\r\n\t\t\t\t\t\r\n\t\t\t
Recommended reading<\/div>\r\n\t\t\t
\"\"<\/div><\/a>\r\n\t\t\t\r\n\t\t\tICC Trust Fund: The black hole\r\n\t\t<\/a>\r\n\t\t\r\n\t\t\t\t<\/div><\/span><\/p>\n

\u201cVictims wait a lifetime\u201d<\/h3>\n

A regular critique is that the Fund has not helped itself by not filling the posts they have budget for. At the end of 2019, the states\u2019 Committee on Budget and Finance \u201cnoted with concern the constant under-implementation rate\u201d of the TFV on its budget. The knock-on effect on implementation plans and execution of reparations projects, which \u201chave taken and are taking an extensive time to develop, commission and realise\u201d, was highlighted in the Independent Expert Review which devoted many pages detailing the TFV\u2019s failings and five specific recommendations. Overall, the independent experts say, \u201cprofound delays exhibit the whole process\u201d. \u201cVictims\u201d, the experts heard, \u201cwait a lifetime\u201d.<\/p>\n","protected":false},"excerpt":{"rendered":"

ICC TRUST FUND SERIES - EPISODE 1 In 15 years, the International Criminal Court\u2019s Trust Fund for Victims has struggled to develop its strategy. Its budget is opaque. Its output as limited as it is difficult to assess. Through court documents analysis, field reports and interviews, Justice Info opens a series of articles on the […]<\/p>\n","protected":false},"author":64,"featured_media":61587,"comment_status":"open","ping_status":"closed","sticky":false,"template":"","format":"standard","meta":{"_acf_changed":false,"footnotes":""},"categories":[562],"tags":[],"ji_location":[2567],"class_list":["post-46193","post","type-post","status-publish","format-standard","has-post-thumbnail","hentry","category-icc","ji_location-international"],"acf":[],"yoast_head":"\nICC Trust Fund: The headless chicken - JusticeInfo.net<\/title>\n<meta name=\"robots\" content=\"index, follow, max-snippet:-1, max-image-preview:large, max-video-preview:-1\" \/>\n<link rel=\"canonical\" href=\"https:\/\/www.justiceinfo.net\/en\/46193-icc-trust-fund-headless-chicken.html\" \/>\n<meta property=\"og:locale\" content=\"en_US\" \/>\n<meta property=\"og:type\" content=\"article\" \/>\n<meta property=\"og:title\" content=\"ICC Trust Fund: The headless chicken\" \/>\n<meta property=\"og:description\" content=\"ICC TRUST FUND SERIES - EPISODE 1 In 15 years, the International Criminal Court\u2019s Trust Fund for Victims has struggled to develop its strategy. Its budget is opaque. Its output as limited as it is difficult to assess. 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Its budget is opaque. Its output as limited as it is difficult to assess. 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