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vienna convention
vienna convention
Treaties (1969)
Anthony Aust†, Oliver Dörr
Subject(s):
Customary international law — Vienna Convention on the Law of Treaties — State succession,
international agreements — Travaux préparatoires — Treaties, amendments and modification — Treaties,
conclusion
Published under the auspices of the Max Planck Institute for Comparative Public Law and International
Law under the direction of Professor Anne Peters (2021–) and Professor Rüdiger Wolfrum (2004–2020).
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Editor’s Note: This entry was originally written in 2006 by the late Anthony Aust, CMG
(1942–2017), and was updated by Oliver Dörr in March 2023. The original version of this
entry was published in the 2012 print edition of the Encyclopedia (R Wolfrum (ed) The Max
Planck Encyclopedia of Public International Law (OUP Oxford 2012) vol X, 709–14).
A. Introduction
1 The law of → treaties is the body of rules which govern what is a treaty, how it is made
and brought into force, amended, terminated, and generally operates. Apart from issues of
→ ius cogens, it is not concerned with the substance of a treaty (the rights and obligations
created by it), which is known as treaty law. The law of treaties comprises mostly primary
rules and only very few secondary rules, such as the right to termination as a consequence
of a breach of treaty (Art. 60 VCLT). Although the Vienna Convention on the Law of Treaties
(‘VCLT’) does not occupy the whole ground of the law of treaties, it covers the most
important areas and is the indispensable starting point for any description of the law, and
indeed the most important instrument referred to in today’s international treaty practice.
For good reason, therefore, the VCLT has been called the ‘treaty on treaties’.
3 For the first ten years the ILC saw its task as being the production of an expository code,
setting out what the ILC considered to be the customary international law on the subject.
But in 1961 the ILC decided that such a code would not be so effective for the purpose of
restating the law, particularly as so many new States had by then emerged, and were
continuing to emerge. Codification through a multilateral treaty would give the new States
the opportunity to take part in the formulation of the law, so placing the law of treaties on
the widest and most secure foundation. The ILC adopted a final set of draft articles, with a
commentary on each one, in 1966 (‘1966 Draft Articles on the Law of Treaties’).
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(amendment of multilateral treaties), and Part V (invalidity and termination) (Sinclair [1984]
12–18) (→ Treaties, Multilateral, Reservations to; → Treaties, Amendment and Revision;
→ Treaties, Validity; → Treaties, Termination). In particular, some States, on the Vienna
Conference and afterwards, were very critical and quite reluctant vis-à-vis the then
innovative concept of ius cogens (cf Schmalenbach ‘Article 53’ [2018] MN 12–17; on the
French position cf Deleau [1969] 14–20). In the case of France, that reluctance seems to be
the main reason why until today that State still has not acceded to the VCLT (Schmalenbach
‘Article 53’ [2018] MN 17), while Belgium has entered a reservation in respect of Arts 53
and 64 VCLT. In general, however, the Convention, as a piece of international law-making,
has turned out to be a great success: by the end of 2022, out of today’s some 193 States,
the Convention had 116 parties, and beyond that its provisions are in practice widely
referred to as international custom and applied in relations between States not parties to it
(see paras 14–18 below).
6 The rules are thus largely residual, leaving treaty practice very much in the hands of
States. This may be one of the reasons why the Convention may seem to some to be
insufficient as a regulatory instrument, that it is not in all fields equally helpful (such as ius
cogens, interpretation and subsequent practice, conflict of treaties, and reservations)
(→ Treaties, Conflicts between). And, indeed, some of those areas have been sent back to
the ILC for further discussion and specification. However, from the point of view of
international legal practitioners—for whom it is their ‘bible’—the Convention has proved
itself to be a most adaptable tool, well able to deal with the challenges to treaty-making
presented by the many changes in international life. In short, the VCLT is widely regarded
by those who have to draft, negotiate, and otherwise deal with treaties as a sensible and
practical guide.
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1. Treaties with or between Other Subjects of International Law
8 States do not enter into treaties only with other States; they enter into treaties with
other → subjects of international law, in particular international organizations; and
international organizations enter into treaties with each other (→ International
Organizations or Institutions, External Relations and Cooperation). The VCLT does not
apply to such treaties, which are the subject of the Vienna Convention on the Law of
Treaties between States and International Organizations or between International
Organizations (1986) (‘VCLT-IO’; see also → International Law, Development through
International Organizations, Policies and Practice). In effect, the latter Convention applies
to such treaties the provisions of the VCLT, suitably adapted. The VCLT-IO is not yet in
force, but some 35 years after its adoption, the entry into force may actually be just around
the corner: By the end of 2022, it had 33 of the 35 States Parties needed to ratify it in order
to bring it into force. In any case, the first 72 articles of the VCLT-IO closely follow Arts 1–
72 of the VCLT. Dealing as they do with the same matters, there can be little doubt that the
provisions of the VCLT-IO are generally accepted as the applicable law.
9 Although the Convention could, as such, not apply to a treaty between a State and an
international organization, such as a host country (or headquarters) agreement, the rules of
the VCLT will apply insofar as they reflect the rules of customary international law
applicable to treaties with international organizations (Art. 3 (b) VCLT). When States Parties
to the VCLT are parties to a multilateral treaty to which other subjects of international law
are also parties, as between those States Parties it is the VCLT which applies, not
customary international law (Art. 3 (c) VCLT). Admittedly, however, the distinction between
the rules of the VCLT and customary international law may seem somewhat academic, as
long as international practice tends to consider the provisions of the Convention to reflect
international custom in a rather sweeping and undifferentiated manner (see paras 14–17
below).
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responsibility for breach of a treaty and the effect of armed conflict on treaties (→ State
Responsibility; → Armed Conflict, Effect on Treaties).
4. Oral Agreements
12 The definition of treaty in Art. 2 (1) (a) VCLT includes only an international agreement
which is ‘in written form’, thus excluding oral agreements. This was done for reasons of
clarity and simplicity. But the exclusion of oral agreements from the VCLT does not affect
their legal force, or the application to them of any of the rules in the VCLT to which they are
subject under international law independently of the VCLT, such as customary international
law (Art. 3 (a) VCLT). Even today, oral agreements between States are not unknown, though
they are rare and only found when the matter is so simple that the agreement does not have
to be in writing. The dispute between Denmark and Finland about the construction by
Denmark of a bridge across the Store Bælt (Great Belt), which Finland had taken to the
→ International Court of Justice (ICJ), was in 1992 settled in a telephone conversation
between the Danish and Finnish Prime Ministers, in which Finland agreed to discontinue
the case in return for a payment by Denmark. There is no official joint written record of this
oral agreement (see (1993) 32 ILM 103; see also the → Eastern Greenland Case).
5. No Retrospective Effect
13 Article 4 VCLT provides that the VCLT applies only to those treaties which are
‘concluded’ by States after the date on which the VCLT enters into force for those States.
The Convention will thus not apply to States which, even if they took part in the conclusion
of the treaty, were not at that time parties to the VCLT. Article 4 VCLT also provides,
however, that the rule against retrospection is without prejudice to the application of any
rules in the VCLT to which treaties would be subject under international law independently
of the Convention. Thus, those rules of the VCLT which reflect customary international law
apply (albeit as customary law) to treaties concluded before the entry into force of the
VCLT, or concluded afterwards but before the VCLT entered into force for parties to those
treaties (see further Sinclair [1984] 248–49 and P McDade [1986]). In particular, the rules
on treaty interpretation contained in Arts 31–33 VCLT are usually applied to all treaties
outside the scope of the Convention, since those rules are generally accepted to reflect
international customary law (Dörr ‘Article 31’ [2018] MN 7; → Treaties, Interpretation of).
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only if the matter is litigated, and even then the court or tribunal will take the VCLT as its
starting—and probable finishing—point.
15 Despite the reservations made on ratification of the VCLT (see Multilateral Treaties
Deposited with the Secretary-General, Chapter XXIII [information available on <https://
treaties.un.org/> (accessed 14 March 2023)]), which were mostly on dispute settlement,
this is certainly the approach taken by the ICJ, as well as by other courts and tribunals,
international and national. In the → Kasikili/Sedudu Islands Case (Botswana/Namibia) the
ICJ interpreted and applied the Heligoland-Zanzibar Treaty of 1890 between the United
Kingdom and Germany in accordance with the rules in Arts 31 and 32 VCLT, despite the
Art. 4 VCLT rule against retrospection, and the fact that neither of the States was a party to
the VCLT (Kasikili/Sedudu Island [Botswana/Namibia] para. 18). In general, the ICJ has
applied the rules of interpretation laid down in the Convention as codified custom to
virtually every treaty that came before it, and this view is widely shared by other
international courts and tribunals, as well as by some national courts (cf for references Dörr
‘Article 31’ [2018] MN 6; more recently confirmed in Immunities and Criminal Proceedings
[Equatorial Guinea v France] [Merits] para. 61; Application of the International Convention
on the Elimination of All Forms of Racial Discrimination [Qatar v United Arab Emirates]
[Preliminary Objections] para. 75). As early as 1971, the ICJ held that the rules of the VCLT
concerning termination of a treaty for breach ‘may in many respects be considered as
codification of existing customary law’ (Legal Consequences for States of the Continued
Presence of South Africa in Namibia [South West Africa] notwithstanding Security Council
Resolution 276 [1970] [Advisory Opinion] para. 94) and applied Art. 60 VCLT (termination
of a treaty for breach) (→ South West Africa/Namibia [Advisory Opinions and Judgments]).
In 1973 the ICJ held that Art. 52 VCLT recognized that treaties concluded by the threat or
use of force were void, and that Art. 62 VCLT (fundamental change of circumstances or
clausula rebus sic stantibus; → Treaties, Fundamental Change of Circumstances) reflected,
or was in many respects a codification of, customary international law (Fisheries
Jurisdiction [Federal Republic of Germany v Iceland] [Jurisdiction of the Court] paras 24
and 36 respectively). In 1997 in the Gabčíkovo-Nagymaros Project (Hungary/Slovakia) case,
the principal treaty at issue predated the entry into force of the VCLT for the parties to the
case (paras 42–46 and 99; → Gabčíkovo-Nagymaros Case [Hungary/Slovakia]).
Nevertheless, the ICJ brushed aside the question of the possible non-applicability of the
VCLT’s rules to questions of termination and suspension of treaties, and applied its Arts 60
to 62 as generally reflecting customary law, even though previously they had been
considered rather controversial.
16 Given the previous pronouncements by the ICJ, and mentioned in the Gabčíkovo-
Nagymaros case, it is reasonable to assume that the ICJ will take the same approach in
respect of virtually all the provisions of the VCLT. There has as yet been no case where the
ICJ has found that substantive provisions of the Convention do not reflect customary law.
Only in the case of Armed Activities on the Territory of the Congo (New Application: 2002)
(Democratic Republic of the Congo v Rwanda) did the Court, in its judgment of 2006
([Jurisdiction and Admissibility] para. 125), explicitly hold that Art. 66 VCLT is not
declaratory of customary international law (→ Armed Activities on the Territory of the
Congo Cases). This, however, is hardly surprising, as Art. 66 contains a procedural rule on
the settlement of disputes which specifically refers to the Convention itself and is not
suitable to function as a general legal rule.
17 This positive attitude of international jurisprudence towards the VCLT should come as
no surprise. Despite what some commentators may say, as with any successful codification
of the law, the VCLT inevitably reduces the scope for doubt and argument, and thus judicial
law-making. For most practical purposes treaty questions are simply resolved by applying
the rules of the VCLT. To attempt to determine whether a particular substantive provision of
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the VCLT represents customary international law is now a rather futile task. Even some
important procedural provisions, such as the requirement to give a minimum period of
notice of termination if the treaty is silent (Art. 56 (2) VCLT), may now be accepted as
representing customary law. The result is that the modern law of treaties is now for most
purposes authoritatively, and flexibly (see Section C above), set out in the VCLT. This is
probably the main reason why only about 60 per cent of States have bothered to ratify the
VCLT. In short, as with any court, if the judges consider that the rules in a treaty are
sensible, they will do their best to find a way of treating them as the applicable law.
18 The one issue where there may be doubt as to whether the VCLT reflects customary
international law concerns reservations to treaties. While it may safely be said that the
flexible system for dealing with reservations, established by Arts 19–23 VCLT, is as such
today recognized as customary law, this is far from settled, eg, with regard to the treatment
of reservations which are inadmissible under Art. 19 (c) VCLT or the effect of objections to
reservations (see Walter ‘Article 19’ [2018] MN 134). In 2011, the ILC adopted a Guide to
Practice on Reservations to Treaties which may today be considered the most authoritative
interpretation on Arts 19–23 VCLT (Walter ‘Article 19’ [2018] MN 39; see also various
contributions in [2013] 24 EJIL 1055–1152).
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Similarly, an existing treaty rule can be derogated by a contravening practice of the States
Parties to it, when that practice is accompanied by a discernible opinio iuris to modify the
treaty: this concept was applied by the → European Court of Human Rights (ECtHR) when
in Al-Saadoon and Mufdhi v United Kingdom (para. 120) it held that the part of Art. 2 (1)
European Convention for the Protection of Human Rights and Fundamental Freedoms
which declares the → death penalty to be admissible is derogated by the uniform practice of
the European States and therefore no longer binding treaty law among them (→ European
Convention for the Protection of Human Rights and Fundamental Freedoms [1950]).
Cited Bibliography
O Deleau ‘Les positions françaises à la Conférence de Vienne sur le droit des
traités’ (1969) 15 AFDI 7–23.
S Rosenne The Law of Treaties: A Guide to the Legislative History of the Vienna
Convention (Sijthoff Leyden 1970).
RG Wetzel and D Rauschning The Vienna Convention on the Law of Treaties: Travaux
Préparatoires (Metzner Frankfurt am Main 1978).
I Sinclair The Vienna Convention on the Law of Treaties (2nd edn Manchester
University Press Manchester 1984).
PV McDade ‘The Effect of Article 4 of the Vienna Convention on the Law of Treaties
1969’ (1986) 35 ICLQ 499–511.
R Jennings and A Watts (eds) Oppenheim’s International Law (9th edn Longman
Harlow 1992).
M Villiger Customary International Law and Treaties: A Manual on the Theory and
Practice of the Interrelation of Sources (2nd edn Kluwer The Hague 1997).
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K Wolfke ‘Treaties and Custom: Aspects of Interrelation’ in J Klabbers and R Lefeber
(eds) Essays on the Law of Treaties: A Collection of Essays in Honour of Bert Vierdag
(Nijhoff The Hague 1998) 31–39.
A Watts, The International Law Commission 1949–1998 vol II The Treaties (OUP
Oxford 1999).
O Dörr ‘Article 31’ in O Dörr and K Schmalenbach (eds) Vienna Convention on the
Law of Treaties: A Commentary (2nd edn Springer Berlin 2018) 559–616.
C Walter ‘Article 19’ in O Dörr and K Schmalenbach (eds) Vienna Convention on the
Law of Treaties: A Commentary (2nd edn Springer Berlin 2018) 263–315.
Further Bibliography
RD Kearney and RE Dalton ‘The Treaty on Treaties’ (1970) 64 AJIL 495–561.
P Reuter La Convention de Vienne du 29 mai 1969 sur le droit des traités (Colin Paris
1970).
A Orakhelashvili and S Williams (eds) 40 Years of the Vienna Convention on the Law
of Treaties (British Institute of International and Comparative Law London 2010).
E Cannizzaro (ed) The Law of Treaties Beyond the Vienna Convention (OUP Oxford
2011).
O Corten and P Klein (eds) The Vienna Conventions on the Law of Treaties: A
Commentary (OUP Oxford 2011).
A Aust Modern Treaty Law and Practice (3rd edn CUP Cambridge 2013).
DB Hollis (ed) The Oxford Guide to Treaties (2nd edn OUP Oxford 2020).
Cited Documents
COE ‘Convention for the Protection of Human Rights and Fundamental
Freedoms’ (signed 4 November 1950, entered into force 3 September 1953) 213
UNTS 221.
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Convention on the High Seas (done 29 April 1958, entered into force 30 September
1962) 450 UNTS 82.
Harvard Law School ‘Draft Convention on the Law of Treaties’ (1935) 29 AJIL Supp
653–1226.
UN ILC ‘Draft Articles on the Law of Treaties with Commentaries’ (1966) GAOR 21st
Session Supp 9, 20.
Vienna Convention on the Law of Treaties (concluded 23 May 1969, entered into force
27 January 1980) 1155 UNTS 331.
Further Documents
UN Conference on the Law of Treaties ‘Official Records (First and Second Sessions):
Documents of the Conference’ (1971) UN Doc A/CONF.39/11/Add.2.
UN ILC ‘Report of the International Law Commission Covering the Work of its
Sixteenth Session’ (11 May–24 July 1964) [1964] vol II UNYBILC 173.
UN ILC ‘Report of the International Law Commission on the Work of Its Eighteenth
Session’ (4 May–19 July 1966) [1966] vol II part II UNYBILC 172.
Cited Cases
Al-Saadoon and Mufdhi v United Kingdom (ECtHR) App 61498/08 Reports 2010-II 61.
Armed Activities on the Territory of the Congo (New Application: 2002) (Democratic
Republic of the Congo v Rwanda) (Jurisdiction and Admissibility) [2006] ICJ Rep 6.
Fisheries Jurisdiction (Federal Republic of Germany v Iceland) (Merits) [1974] ICJ Rep
175.
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Fisheries Jurisdiction (United Kingdom v Iceland) (Merits) [1974] ICJ Rep 3.
Legal Consequences for States of the Continued Presence of South Africa in Namibia
(South West Africa) notwithstanding Security Council Resolution 276 (1970) (Advisory
Opinion) [1971] ICJ Rep 16.
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