Doc.9823 AirLawProtocol88

DOC 9823-DCE
INTERNATIONAL CIVIL AVIATION ORGANIZATION
INTERNATIONAL CONFERENCE ON AIR LAW

(Protocol for the Suppression of Unlawful Acts of Violence at Airports Serving International Civil Aviation, Supplementary to the Convention for the Suppression of Unlawful Acts Against the Safety of Civil Aviation) Montreal, 9 - 24 February 1988
MINUTES AND DOCUMENTS
2003
MONTREAL
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CANADA
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TABLE OFCONTENTS
Page
PART I INTRODUCTION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . PART II LISTOFDELEGATES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . MINUTES OF THE PLENARY MEETINGS OF THE CONFERENCE AND OF THE . COMMISSION OF THE WHOLE FIRST PLENARY MEETING. 9 February 1988 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Opening of the Conference . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Adoption of the Rules of Procedure . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . AdoptionoftheAgenda . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Establishment of the Credentials Committee . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . General Statements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
15 15 18 18 18 18
. . . . . . . . . . . . . . .3
SECOND PLENARY MEETING. 9 February 1988 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Preliminary Report of the Credentials Committee . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . General Statements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Election of the President of the Conference . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
23 23 23 27
THIRD PLENARY MEETING. 10 February 1988 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

General Statements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
. . . 29
29
FOURTH PLENARY MEETING. 10 Februav 1988 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

General Statements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
35 35
FIRST MEETING OF THE COMMISSION OF THE WHOLE. 10 February 1988 . . . . . . . . . . . . 37

OrganizationofWork . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Consideration of the Draft instrument . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
37 37
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SECOND MEETING OF THE COMMISSION OF THE WHOLE. 11 February 1988 . . . . . . . . . . 41
Consideration of the Draft Instrument . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41 Point No . 1. Jurisdiction and Ektradition . . ._/ . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41 42 Point No . 2 . Preventive measures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Point No . 3. Participation of States in the new instrument if they are not parties to the Montreal Convention of 1971 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42 Point No . 4 . Implications of inclusion in the Protocol of aircraft not in service at the airport . . . . . 42 Paragraph 1 bis of Article 1 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 43 Inciusionofthreats . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. .. . . . . . t . . . . . . . . . . . . . . . . . . .44
I
. I
. . . . . .
THIRD MEETING OF THE COMMISSION OF THE WHOLE, 11 February 1988 . . . . . . . . . . . 47

Consideration of the Draft instrument . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 47 Point No .1. Jurisdiction and Extradition . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 47 Point No . 2 . Preventive measures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 48 Point No . 3. Participation of States in the new instrument if they are not parties to the Montreal Convention of 1971 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 48 Point No . 4 . Implications of inclusion in the Protocol of aircraft not in service at the airport . . . . . 48 49 Paragraph 1 bis of Articie 1 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 50 Inc1usionofthreats . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Point No .1. Jurisdiction and Extradition . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 51 Point No. 2 . Preventive measures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 51 Point No. 3. Participation of States in the new instrument if they are not parties to the Montreal Conventionof 1971 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 52 Point No . 4 . Implications of inclusion in the Protocol of aircraft not in service at the airport . . . . . 52 Paragraph 1 bis of Article 1 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 52
FIFTH PLENARY MEETING. 11 February 1988 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 55

Electionofthe Vice-presidents of the Conference . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
55
FOURTH MEETING OF THE COMMISSION OF THE WHOLE. 12 Februmy 1988 .......... 57

Consideration of the Draft Instniment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 . . . . 57 Forniofthenewinstrument . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 57 Jurisdiction and extradition . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . : . . . . . . . . . . . . . . .- 5 7 Preventivemeasures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 58 Participation by States not parties to the Montreal Convention :. . . . . . . . . . . . . . . . . . . . . . . . . . . . 58 A i r c d not in service at the airport . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 59 Paragraphlbis . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 59
FIFTH MEETING OF THE COMMISSION OF THE WHOLE. 12 February 1988 . . . . . . . . . . . . 61

Consideration of the Draft Instrument . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Form of the new instrument . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Jurisdiction and extradition . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Preventive measures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Participation by States not parties to the Montreal Convention . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Aircraft not in service at the airport . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Paragraphlbis . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
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61 61 61 61 62 62 62
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SIXTH PLENARY MEETING. 12 February 1988 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
65
Establishment of a Drafting Committee . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 65 General Statement by the Delegation of the Democratic Peoples Republic of Korea . . . . . . . . . . . . . 65
SIXTH MEETING OF THE COMMISSION OF THE WHOLE. 15 February 1988 . . . . . . . . . . . 69 SEVENTH MEETING OF THE COMMISSION OF THE WHOLE. 15 February 1988 . . . . . . . . 75 EIGHTH MEETING OF THE COMMISSION OF THE WHOLE. 16 February 1988 . . . . . . . . . . 81
Consideration of the Draft Instrument . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ArticleIII . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Preventive measures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
81 81 84
NINTH MEETING OF THE COMMISSION OF THE WHOLE. 16 February 1988 . . . . . . . . . . . 87

Consideration of the Draft Instrument . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Preventive measures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
87
87
TENTH MEETING OF THE COMMISSION OF THE WHOLE. 17 February 1988 . . . . . . . . . . . 93

Consideration of the Draft Instrument . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
93
ELEVENTH MEETING OF THE COMMISSION OF THE WHOLE. 18 February 1988 . . . . . . . 99

Consideration of the Draft Instrument . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
99
TWELFTH MEETING OF THE COMMISSION OF THE WHOLE. 18 February 1988 . . . . . . . 103

Consideration of the Draft Instrument . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
103
THIRTEENTH MEETING OF THE COMMISSION OF THE WHOLE. 19 February 1988 . . . . 105

Consideration of the Draft Instrument . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
105
SEVENTH PLENARY MEETING. 19 February 1988 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Report of the Credentials Committee . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
111
111
FOURTEENTH MEETING OF THE COMMISSION OF THE WHOLE. 19 February 1988 . . . 113 FIFTEENTH MEETING OF THE COMMISSION OF THE WHOLE. 22 February 1988 . . . . . 117 EIGHTH PLENARY MEETING. 22 February 1988 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . NINTH PLENARY MEETING. 23 February 1988 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
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123 125
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TENTH PLENARY MEETING. 24 February 1988 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Signature of the Final Act and of the Protocol of the Conference . . . . . . . . . . . . . . . . . . . . . . . . . .
135 135
PART III PREPARATORY MATERIAL

Report of the Legal Committee. 26th Session (Montreal. 28 April to 13 May 1987) (D0~9502-LC/186). . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 141
PART IV DOCUMENTATION OF THE CONFERENCE
VIA Doc No . 1
VIA Doc No . 2
Provisional Agenda . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Provisional Rules of Procedure . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Draft Protocol . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Comments of the Niger . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
191 193 201 207
VIA Doc No . 3 VIA D c No . 4 o

VIA D c No . 5 o
Comments of the International Air Transport Association . . . . . . . . . . . . . . . 209 Comments of Argentina . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Comments of Argentina . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Comments of Peru . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Comments of Ecuador . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 211 215
*
VIA Doc No . 6 VIA D c No . 6 o (Addendum)

VIA Doc No . 7
217 221
VIA D c No. 8 o
VIA Doc No . 9 VIA Doc No . 10
VIA Doc No . i 1
Comments of the International Federation of Airline Pilots Associations . . . . . 223 Comments of Colombia . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Comments of the Kingdom of the Netherlands . . . . . . . . . . . . . . . . . . . . . . . . . Comments of Chile . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Comments of Australia . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Comments of France . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 225 229 231 235 239
VIA Doc No . 12 VIA Doc No . 13 VIA Doc No . 14

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VIA Doc No . 14 (Addendum) VIA Doc No . 15
Comments of France . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Comments of Chad . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
24 1 243
VIA Doc No . 16
VIADocNo . 17
Comments of the Fdration Aronautique Internationale . . . . . . : . . . . . . . . . 245 Comments of the Islamic Republic of Iran . . . . . . . . . . . . . . . . . . . . . . . . . . . Comments of Cuba . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Comments of the United States . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Comments of the United States . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 247 251 253 255
VIA Doc No . 18
VIA Doc No . 19 VIA Doc No . 19 (Addendum) VIA Doc No . 20 VIA Doc No . 21 VIA Doc No . 22 VIA Doc No . 23 VIA Doc No . 24 VIA Doc No . 25 VIA Doc No . 26 VIA Doc No . 27
Comments of Israel . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Comments of Greece . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
259 261
Comments of the Airport Associations Coordinating Council . . . . . . . . . . . . . 263 Comments of Uruguay . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Comments of the United Kingdom . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Comments of Japan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 265 267 269
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(Presented by the Delegation of the Union of Soviet Socialist Republics) . . . . . 275 Comments of the United Republic of Tanzania . . . . . . . . . . . . . . . . . . . . . . . . 277
VIA Doc No . 28
VIA Doc No . 29 VIA Doc No . 30 VIA Doc No . 3 1 VIA Doc No . 32 VIA Doc No . 33 VIA Doc No . 34 VIA Doc No . 35 VIA Doc No . 36
Text prepared by the Drafting Committee . of the Protocol . . . . . . . . . . . 281 Title Article III of the Draft Protocol . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 283
Alternative Text for the First Two Preambular Paragraphs . . . . . . . . . . . . . . . 285 Draft Final Clauses . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 287
Resolution of the International Conference on Air Law . . . . . . . . . . . . . . . . . . 289 Text prepared by the Drafting Committee . Article I . . . . . . . . . . . . . . . . . . . . Report of the Credentials Committee . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . DraftFinal Act . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Draft Resolution . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
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Draft Resolution of the International Conference on Air Law . . . . . . . . . . . . . 305 Draft Final Act . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Texts prepared by the Drafting Committee . . . . . . . . . . . . . . . . . . . . . . . . . . . DraftFinalAct . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Draft Protocol . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 307 3 11 313 3 19
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PART V PROTOCOL FOR THE SUPPRESSION OF UNLAWFUL ACTS OF VIOLENCE AT AIRPORTS SERVING INTERNATIONAL CIVIL AVIATION, SUPPLEMENTARY TO THE CONVENTION FOR THE SUPPRESSION OF UNLAWFUL ACTS AGAINST THE SAFETY OF CIVIL AVIATION, DONE AT MONTREAL ON 23 SEPTEMBER 1988 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 325
PART VI FINAL ACT OF THE INTERNATIONAL CONFERENCE ON AIR LAW HELD UNDER THE AUSPICES OF THE INTERNATIONAL CIVIL AVIATION ORGANIZATION I N FEBRUARY1988 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
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PART I
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INTRODUCTION
The International Conference on Air Law which met in Montreal fi-om9 to 24 February 1988 was held under the auspices of the International Civil Aviation Organization. Previous International Conferences on Air Law were held, inter alia, at Rome (1952), The Hague (1955), Guadalajara (1961), Tokyo (1963), The Hague (1970), Guatemala City (197 i), Montreal (197 i), Rome (1973), Montreal (1975) and Montreal (1978). The Conference was convened for the purpose of considering, with a view to approval, the text of a DraJ Protocol to amend the Conventionfor the Suppression of UnlawfulActs against the Safety of Civil Aviation signed at Montreal on 23 September 1971, prepared in accordance with the decision of the 26th Session of the Legal Committee.
HISTORY
The 26th Session of the ICAO Assembly, held in Montreal from 23 September to 10 October 1986, adopted unanimously Resolution A26-4, calling upon the Council to convene as early as possible in the first half of 1987 a meeting of the Legal Committee to prepare a draft instrument for the suppression of unlawful acts of violence at airports serving international civil aviation with a view to adoption of the instrument at a diplomatic conference as soon as practicable, preferably before the end of the 1987 calendar year, in accordance with the ICAO procedures set forth in Assembly Resolution A7-6. The Legal Commission of the Assembly also recommended that the highest degree of priority in the Work Programme of the Lega! Committee be accorded to the item: Development of an Instrument for the Suppression of Unlawful Acts of Violence at Airports Serving International Civil Aviation. Pursuant to Resolution A26-4, the Council decided on 18November 1986 at the third meeting of its 119th Session, to convene a special Sub-committee of the Legal Committee at Montreal, for the preparation of a draft instrument for the suppression of unlawful acts of violence at airports serving intemational civil aviation for the consideration of the Legal Committee. The Council also decided at the same meeting to convene the 26th Session of the Legal Committee.
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The subject was studied by a Rapporteur appointed by the Chairman of the Legal Committee and by the Special Sub-committee of the Legal Committee, which met at Montreal from 20 to 30 January 1987. After a discussion during its 26th Session, held at Montreal from 28 April to 13 May 1987, the Legal Committee decided that the new instrument should be drafted i the form of a Protocol n supplementary to the Conventionfor the Suppression of Unlawfil Acts against the Safety o Civil Aviation, f signed at Montreal on 23 September 1971, to deal with unlawful acts of violence at airports serving international civil aviation; such Protocol would not amend the basic principles of that Convention. Based on this decision and a draft text approved by the Legal Committee, the ICA0 Secretariatprepared a draft Protocol for convenience of reference and to facilitate further discussions.
ACTION BY THE COUNCIL

Having reviewed the report of the Legal Committee, the Council decided on 3 June 1987, at the third meeting of its 121st Session, to convene in Montreal an International Conference on Air Law from 9 to 24 February 1988.
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PART I I
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LIST OF DELEGATES
ALGERIA, THE PEOPLESS DEMOCRATIC REPUBLIC OF

M. Ghoualmi
I. Ben-Amara
BRAZIL,THE FEDERATIVE REPUBLIC OF
C. A. T. Paranhos
P. C. de Assis
G. R. Pereira
W. C.C . Machado
ARGENTINE REPUBLIC, THE

F. J. Pulit
BULGARIA, THE PEOPLESREPUBLIC OF

V. Velitchkov
R. Besaccia H. A. Perucchi
R. Bocalandro
C. Tepavitcharov C. Mladenov
V. Jeliazkov
F. E. Dozo M. C . Salvat
N. A. Bisso
BYELORUSSIAN SOVIET SOCIALIST REPUBLIC, THE

V. M. Kourilo
E. N. Vychegzhanin
AUSTRALIA
N. S. Reaburn D. F. J. J. De Stoop
J. E. Sansom
AUSTRIA, THE REPUBLIC OF
H. Turk H. Winkler
CANADA
M. Vzina
P.Kirsch
D.M. Fiorita P. Fauteux
G. Lauzon
V. Hughes
S. Benner
BELGIUM, THE KINGDOM OF
J. Rodocanachi
G. Mazowita
B. ShafEer B. Stockfish
J. Verstappen
D. Flore J. Naveau
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CHILE, THE REPUBLIC OF
CZECHOSLOVAK SOCIALISTREPUBLIC,
R.E. Eyzaguirre
J. G. Dupouy
THE
J. NulCka J. NulEek
R.J. Gaete J. R.Ansted

J. B. Gillet
CHINA, THE PEOPLES REPUBLIC OF
R. Lu G. Lu
o. vodi&a
P. Domin
R.KoZuSnk R.Najman
J. Zbralov
DEMOCRATIC PEOPLES REPUBLIC OF KOMA, THE
K. Li
Y. Zheng H. Xue
Z. Zhang Z. Xi
C.Y. Cho1
K. M. Dok DENMARK, THE KINGDOM OF
COLOMBIA, THE REPUBLIC OF

G. Ortega L. Rodriguez
J. Bernhard
ECUADOR, THE REPUBLIC OF
F. C . Bassano L. M. Guerra
COSTA RICA, THE REPUBLIC OF

B. Mesen B. M. Romero-Royo
EGYPT, THE ARAB REPUBLIC OF

A. O.Ziko
CTE DIVOIRE, THE REPUBLIC OF Y. Kon ETHIOPIA, PEOPLES DEMOCRATIC REPUBLIC OF
R.Tahou Siba
B. Koffi-Bi
T.Meshesha
Y. Gebre-Egziabher
CUBA, THE REPUBLIC OF

A. S . Gutirrez J. S . Nez
L. Urruta
FINLAND, THE REPUBLIC OF E. Helaniemi

V.-M. Metslampi
P. Hill0
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FRENCH REPUBLIC, THE

J.-P. Puissochet J.-M. Bouchaud
HELLENIC REPUBLIC, THE E. Dimitrakopoulos F. Daskalopoulou-Livada

G. Korontzis
C.de la Verpillire
M. Barbin P. Delacroix
E. Larsabal M. Ramis
HUNGARIAN PEOPLES REPUBLIC, THE

L.u.6. Nagy Z.U.Szemes
E.u. Kecskemt1 GERMAN DEMOCRATIC REPUBLIC, THE K. Henkes

G. Damm
J. Mudrack
ICELAND, THE REPUBLIC OF

T.. Sigurdsson
R.Munch
W. Teuchert
GERMANY, THE FEDERAL REPUBLIC OF
H.-J. Heldt
INDIA, THE REPUBLIC OF
B. N. Jha
K. K. Bhatnagar
S. Malik
INDONESIA, THE REPUBLIC OF
A. Abubakar
T. Schmidt
J. Pirrung
E. Frietsch
S. Misbach
Suwardi A. Boediman
S. Joedo
H. W. Thau H. Graumann B. Nierobisch

GHANA, THE REPUBLIC OF
D. O. Agyekum J. O. Koranteng J. Tete-Donkor
C.Adi
K. Sjah
L. R.Oesman IRAN, THE ISLAMIC REPUBLIC OF

M. J. Ranaeifar
F. Camara H. Diallo
M. Hadjighasemali
S. Nadjafi-Tavani H. Panahi-Azar
F.Bakhtiari-As1
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GUINEA, THE REPUBLIC OF
A. A. Golrounia
IRAQ, THE REPUBLIC OF T. Y. Taha
IRELAND
M. Harper
ISRAEL, THE STATE OF
ITALIAN REPUBLIC, THE

L. Ferrari-Bravo
JAMAICA K. O. Rattray G. B. Morris JAPAN
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- 10JORDAN, THE HASHEMITE KINGDOM OF
R.Sukayri M.Juma
KENYA, THE REPUBLIC OF D. K. Ameyo
W. K. Kabuga
P.J. Indeche
A.E. Abwawo KUWAIT, THE STATE OF
S. Shohamy
C. Schirman E. Efrat-Smilg
M. Kimchi
G. Badash
J. A.-A. Ai-Sabah
S. Homossany
D.S. Bouresli
J. M. Al-Mubaraki
LEBANESE REPUBLIC, THE Y. Arsanios LIBERIA, THE REPUBLIC OF
E. Chiavarelli M. Gaiani
A. Sciolla Lagrange
G. Grasso
G. Pinto
F. D.F. Sherman
LIBYAN ARAB JAMAHIRIYA, THE SOCIALIST PEOPLES
A. A. El-Kabissi
M. Pieroni
A.A. Salaheddien
A. A.-B. El-Misilati
M. R.Ghadah
.
Y. Okawa M. Mukai
LUXEMBOURG, THE GRAND DUCHY OF
M. C.Lefort
MADAGASCAR, THE DEMOCRATIC
N. Rakotondramboa
T. Matsumoto
M. Sumki T. Fujita
S. Waanabe
A. Rakotomalala
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- 11 MALAWI, THE REPUBLIC OF NORWAY, THE KINGDOM OF
J. L. Kalemera R. C. Mponda
MALAYSIA
M. Ruud
T. V. Nordeng
B. Blokhus
Z. Abdul
T. Jayasuria
OMAN, THE SULTANATE OF
M. B. R. Al-Baomar G. B. H. Al-Bulushi
PAKISTAN, THE ISLAMIC REPUBLIC OF
A. R.Kechot
MALTA, THE REPUBLIC OF
A. Grech
MEXICAN STATES, THE UNITED
N. A. Shaikh
E. A. Qureshi
S. M. Anwar
PANAMA, THE REPUBLIC OF
J. Prez Y Bours
E. L. Tovar M. O. de R. de Carvajal
NETHERLANDS, THE KINGDOM OF THE
F. H. B. Picardi
PERU, THE REPUBLIC OF L. Arroyo J.
A. Bos R. D. van Dam J. P.H. Donner M. I. van der Zee
A. Contreras S. G. Chauny de P.
J. Garland C. J. L. Ibarra B.
C. Ramrez R.
J. W. M. van Lieshout
A. Vrolijk
F. Wemet
NEW ZEALAND
D. Salazar R.
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D. C. Higgie
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J. Sobieraj M. Zylicz
L. Lukasik
A. Berezowski M. Szwed
D. Boubakar
H. H. Maiga
NIGERIA, THE FEDERAL REPUBLIC OF
D. O. Olowu D. O. Eniojukan
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- 12PORTUGUESE REPUBLIC, THE SENEGAL, THE REPUBLIC OF

A. K. Fall
L.H. C. Navega
J. A. Reis Borges
Y. Diallo T. A. Hane
C. M. de. B. David Calder A. M. Santos Pato
S . Espnola
SPAIN, THE KINGDOM OF
J. C. Stima
REPUBLIC OF KOREA, THE
J. S. Rodriguez L.M. Bada

J. M. Castroviejo
N. M. Cinto
S. Y. Park
J. W. Roh
J. De Miguel Zaragoza
w. c. Rah
J. H. Yo0
Y. K. Oh
J. Aparicio P. J. Carpio
B. Castejon
W. H. Park
Y.-s. shin
SWEDEN, THE KINGDOM OF
S. H. Yoon
ROMANIA, THE SOCIALIST REPUBLIC OF
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V. Hellners U. Berg V. Brusn

R. Pettersson B. Rsi
D. Puiu M. Dimitrescu A. I. Soare

I. Tanase
rdn A. G a i
SWISS CONFEDERATION, THE
V. Teodorascu
SAUDI ARABIA, THE KINGDOM OF
N. Al-Assaf
H. Ai-Dabbagh
S. Rajkhan
M. Neuenschwander
B. Buchmller
G. Panchard
P. Rochat
u. Halditnann
E.Gerber
TOGOLESE REPUBLIC, THE
K. Tsidji
S. A. Al-F. Al G h d i
2. A.-R. Al-Saleh
S. Al-Monaye
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M. Bachraoui A. Hicheri
S. Kilani
UNITED REPUBLIC OF TANZANIA F. Ruhinda

G. H. Kaunda
C. V. Mgana
A. Ben Guirat
B. K. Mwakisu
TURKEY, THE REPUBLIC OF

K. Toperi K. Targay
UNITED STATES OF AMERICA, THE

E. G. Verville
E. Stohr
I. E. Howie T.A. Bored L. Maillett
Y. Erensoy UKRANIAN SOVIET SOCIALIST REPUBLIC, THE
S. M. Witten
R.V. Stepanovich
V. A. Iosifovich
J. L. Casey
VENEZUELA, THE REPUBLIC OF
UNION OF SOVIET SOCIALIST REPUBLICS, THE

M. A. Timofeev Ya. A. Ostrovsky B. A. Ryzhenkov
L. E. Vera Barrios
R.Yepez C. F. Lander
M. Rodriguez
A. Kaufman
UNITED ARAB EMIRATES, THE

M. Y. Al-Suweidi
YUGOSLAVIA, THE SOCIALIST FEDERAL REPUBLIC OF

V. PaviCevid V. Lekiii
Z. Radosavljevii:
M.-D. A. K. Binhendi
M. A. Ahli M. G. Al-Ghaith
J. N. Mookerjee
ZAIRE, THE REPUBLIC OF UNITED KINGDOM OF GREAT BRITAIN AND NORTHERN IRELAND, THE
L. C.Oates K. Bukasa-Muteba M. Mirindi
J. Siddle
A. W. G. Kean
F. A. Neal
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- 14PALESTINE LIBERATION ORGANIZATION (PLO)

O. H. Murad
A. Abdullah
INTERNATIONAL LAW ASSOCIATION (IL4 N. M. Matte

J.-L. Magdelnat
UNITED NATIONS (UN)

A. Adede
AIRPORT ASSOCIATIONS COORDINATING COUNCIL (AACA) H. Dilhann

A. Graser
ARAB CIVIL AVIATION COUNCIL (ACAC) H. H. Hammash
Y. M. El-Zubi
INTERNATIONAL AERONAUTICAL FEDERATION (FAI)
W. P. Paris
INTERNATIONAL AIR TRANSPORT ASSOCIATION (IATA)
H. Larose-Aubry
A. Donohue
L. J. Weber
INTERNATIONAL FEDERATION OF AIR LINE PILOTS ASSOCIATIONS (IFALPA)

A. A. Van Wijk J. Keenan
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DRAFT F i r s t P l e n a r y Meeting
FIRST PLENARY MEETING

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(Tuesday, 9 February 1988, a t 1100 h o u r s )
Acting P r e s i d e n t :
D r . A. K o t a i t e , P r e s i d e n t of t h e I C A O Council
AGENDA ITEM 1:
OPENING O THE CONFERENCE F
1. The P r e s i d e n t of t h e Council of I C A O d e c l a r e d open t h e I n t e r n a t i o n a l Conference on A i r Law by addressing t h e meeting a s f o l l o w s :

"On behalf of t h e Council of I C A O , it i s m g r e a t p l e a s u r e and y p r i v i l e g e t o d e c l a r e open t h e I n t e r n a t i o n a l Conference on A i r Law. The S e c r e t a r y General, M r . Yves Lambert, j o i n s me i n welcoming a l l of you t o t h e Headquarters of t h e Organization. This Conference w a s - convened by d e c i s i o n of t h e Council of I C A O i n accordance w i t h t h e procedure approved by t h e Assembly i n Resolution A7-6. In t h e h i s t o r y of t h e Organization t h i s i s t h e e l e v e n t h i n t e r n a t i o n a l conference convened s p e c i f i c a l l y f o r t h e purpose of t h e u n i f i c a t i o n of i n t e r n a t i o n a l law relating t o international c i v i l aviation. An i n t e r n a t i o n a l conference i s a r a r e and very important event i n t h e l i f e of o u r Organization. The l a s t conference met i n t h i s very h a l l n e a r l y t e n y e a r s ago; t h i s o n l y u n d e r l i n e s t h e importance of your g a t h e r i n g h e r e i n your p o s i t i o n a s p l e n i p o t e n t i a r i e s of your r e s p e c t i v e Heads of S t a t e , Heads of Government o r M i n i s t e r s f o r E x t e r n a l Affairs. Only f i f t e e n months ago i n t h i s h a l l t h e 26th S e s s i o n of t h e I C A O Assembly adopted unanimously Resolution A26-4 c a l l i n g f o r t h e p r e p a r a t i o n of an i n t e r n a t i o n a l instrument f o r t h e suppression of unlawful a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n . It i s probably unprecedented i n t h e h i s t o r y of i n t e r n a t i o n a l lawmaking t h a t w i t h i n t h e s h o r t f i f t e e n months a l l n e c e s s a r y s t u d i e s would b e undertaken by t h e S e c r e t a r i a t , by t h e Rapporteur, by t h e S p e c i a l Legal Sub-committee of t h e ICAO Legal Committee and by t h e 26th Session o f t h e Legal Committee t o p r e p a r e a d r a f t mature f o r c o n s i d e r a t i o n by an i n t e r n a t i o n a l conference. The I n t e r n a t i o n a l C i v i l Aviation Organization g i v e s t h e h i g h e s t p r i o r i t y i n i t s Work Programme t o t h e p r o t e c t i o n of s a f e t y and s e c u r i t y of i n t e r n a t i o n a l c i v i l a v i a t i o n , which has become an i n d i s p e n s a b l e p a r t of t h e world economy and world c i v i l i z a t i o n . Some twenty y e a r s ago t h e Member S t a t e s of ICAO decided t o t a k e a l l necessary measures t o p r o t e c t t h e s e c u r i t y of i n t e r n a t i o n a l c i v l a v i a t i o n a g a i n s t c r i m i n a l a c t s j e o p a r d i z i n g t h e s a f e t y and r e g u l a r i t y of a v i a t i o n . The Tokyo Convention of 1963 on Offences and C e r t a i n Other Acts Committed on Board A i r c r a f t , The Hague Convention of 1970 f o r t h e Suppression of Unlawful S e i z u r e of A i r c r a f t , and t h e Montreal Convention of 1971 f o r t h e Suppression of Unlawful A c t s Against t h e S a f e t y of C i v i l A v i a t i o n a r e important landmarks prepared by previous i n t e r n a t i o n a l conferences convened by t h e Council of I C A O , and we a r e proud t o n o t e t h a t t h o s e Conventions now
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rank among t h e most widely-accepted u n i f i c a t i o n s of i n t e r n a t i o n a l l a w . While t h e Assembly of ICAO, i t s Council, t h e S e c r e t a r y General and myself a r e s t r i v i n g f o r complete u n i v e r s a l i t y of t h o s e fundamental Conventions, i t i s very g r a t i f y i n g t o n o t e t h a t t h e Montreal Convention of 1971, w'hich t h i s Conference i n t e n d s t o supplement, has a l r e a d y been accepted by 137 S t a t e s . The international community, in the unanimous l y - a d o p t e d R e s o l u t i o n A26-4, has a l r e a d y made a p o l i c y s t a t e m e n t r e g a r d i n g t h e need t o p r e p a r e an instrument addressed t o t h e s u p p r e s s i o n of unlawful a c t s of v i o l e n c e a t a i r p o r t s serving international c i v i l aviation. Consequently, t h e r e i s no need t o d i s c u s s i n t h e p r e s e n t forum whether such an instrument i s d e s i r a b l e o r necessary. Again, you meet h e r e knowing t h a t on 7 December 1987, b a r e l y two months ago, t h e United Nations General Assembly adopted R e s o l u t i o n 42/159 on measures t o prevent i n t e r n a t i o n a l t e r r o r i s m ; t h a t r e s o l u t i o n unequivocally condemns once again ( a s was p r e v i o u s l y done i n t h e unanimously adopted United Nations General Assembly R e s o l u t i o n 40/61 of 9 December 1985), as c r i m i n a l , a l l a c t s , methods and p r a c t i c e s of t e r r o r i s m , wherever and by whomever committed, i n c l u d i n g t h o s e which j e o p a r d i z e f r i e n d l y r e l a t i o n s among S t a t e s and t h e i r s e c u r i t y ; t h a t R e s o l u t i o n of t h e United Nations General Assembly, i n Clause 9 , welcomes t h e e f f o r t s undertaken by I C A O aimed a t promoting u n i v e r s a l acceptance o f , and s t r i c t compliance w i t h , i n t e r n a t i o n a l a i r s e c u r i t y conventions and i t s ongoing work on a new instrument f o r t h e s u p p r e s s i o n of unlawful a c t s of Consequently, o u r violence a t a i r p o r t s serving international c i v i l aviation. e f f o r t a t t h i s Conference i s t h e focus of a t t e n t i o n of t h e e n t i r e i n t e r n a t i o n a l community and has t h e f i r m support of t h e United Nations General Assembly.
N doubt you w i l l endeavour t o adopt t h e b e s t instrument p o s s i b l e o which would f u r t h e r safeguard t h e s e c u r i t y of i n t e r n a t i o n a l a v i a t i o n , i n p a r t i c u l a r s e c u r i t y a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n . However, we may have t o b e a r i n mind t h e o l d saying f r e q u e n t l y quoted a t I C A O i n t e r n a t i o n a l c o n f e r e n c e s , namely, "The b e s t may b e t h e enemy of good". I n our d e c i s i o n m a k i n g w e must t r y t o accommodate minor d i f f e r e n c e s i n approach and p r e p a r e an instrument a c c e p t a b l e , i f p o s s i b l e , t o t h e e n t i r e community of n a t i o n s i n t h e s p i r i t of c o - o p e r a t i o n and compromise.
It i s v e r y p l e a s i n g t o n o t e t h a t t h e 26th S e s s i o n of t h e Legal Committee p r e s e n t e d s t r o n g c o n c l u s i o n s , and you w i l l wish t o b e guided by t h e o u t s t a n d i n g s p i r i t of c o - o p e r a t i o n and understanding which p r e v a i l e d a t t h a t S e s s i o n of t h e Legal Committee; o n l y i f w e m a i n t a i n t h a t s p i r i t a t t h i s Conference w i l l t h e o b j e c t i v e s of ICAO Assembly R e s o l u t i o n A26-4 b e achieved. It would n o t b e h e l p f u l i f t h e Conference were t o l o s e much time on One such problem i s margina1 i s s u e s which a r e n o t of s i g n i f i c a n t importance. t h e q u e s t i o n of t h e form of t h e new instrument. It i s my b e l i e f t h a t t h e Legal Committee, by i t s m a j o r i t y , adduced c o n s i d e r a b l e evidence t h a t t h e most e f f i c i e n t way would b e t o d r a f t a new instrument i n t h e form of a P r o t o c o l supplementary t o t h e Montreal Convention of 1971 f o r t h e Suppression of Unlawful Acts Against t h e S a f e t y of C i v i l A v i a t i o n ; t h e v e r y f a c t t h a t t h i s Convention has been r a t i f i e d by 137 S t a t e s i n d i c a t e s t h a t a supplementary P r o t o c o l t o t h i s Convention would have t h e b e s t chance of speedy r a t i f i c a t i o n and no doubt i t would be your i n t e n t i o n t o make a l l n e c e s s a r y arrangements t o b r i n g t h e new instrument i n t o f o r c e as soon as p o s s i b l e .
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Again, i t i s n o t t h e t a s k of t h i s Conference t o d r a f t d e t a i l e d p r o v i s i o n s p u r p o r t i n g t o be model p e n a l l e g i s l a t i o n f o r S t a t e s ; t h e unlawful a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n a r e a l r e a d y c r i m i n a l a c t s under t h e domestic l e g i s l a t i o n of a l l S t a t e s o r a r e covered by t h e g e n e r a l p r o v i s i o n s of t h e c r i m i n a l codes. The t a s k i s t o d e f i n e such a c t s which, due t o t h e i r r e l a t i o n t o i n t e r n a t i o n a l c i v i l a v i a t i o n , endangering o r l i k e l y t o endanger s a f e t y a t an a i r p o r t , should be s i n g l e d o u t a s a c t s d e s e r v i n g t h e e s t a b l i s h m e n t of concurrent ( o r u n i v e r s a l ) j u r i s d i c t i o n , making s u r e t h a t no p e r p e t r a t o r of such an a c t would go unpunished wherever he i s found; t h e S t a t e i n t h e t e r r i t o r y of which t h e a l l e g e d o f f e n d e r i s found would e i t h e r have t o e s t a b l i s h i t s j u r i s d i c t i o n and p r o s e c u t e such an a l l e g e d o f f e n d e r o r would have t h e d u t y t o e x t r a d i t e him t o t h e S t a t e o r S t a t e s having t h e c l o s e s t l i n k w i t h t h e commission of t h e o f f e n c e . T h i s i s t h e b a s i c b a l a n c e of p r i n c i p l e s as t h e y a r e embodied i n The Hague Convention of 1970 and t h e Montreal Convention of 1971. Again, i t w i l l be o u r i n t e n t i o n t o d e f i n e as o f f e n c e s under t h e new instrument o n l y a c t s of a c e r t a i n l e v e l of magnitude d e s e r v i n g t h e e s t a b l i s h m e n t of concurrent o r u n i v e r s a l j u r i s d i c t i o n .
I am w e l l aware t h a t a l l of you a r e concerned t h a t a l l n e c e s s a r y p r e v e n t i v e measures should b e t a k e n a t i n t e r n a t i o n a l a i r p o r t s and elsewhere t o p r o t e c t t h e s a f e t y and s e c u r i t y of i n t e r n a t i o n a l c i v i l a v i a t i o n . I have noted t h a t a t t h e Legal Committee some Delegations contemplated i n s e r t i n g i n t o t h e new i n s t r u m e n t s p e c i f i c p r o v i s i o n s r e l a t i n g t o preventive actions. N e v e r t h e l e s s , you w i l l n o t e t h a t A r t i c l e 10 of t h e Montreal Convention of 1971 a l r e a d y c o n t a i n s a g e n e r a l p r o v i s i o n concerning p r e v e n t i v e measures. It would appear t h a t your concern f o r p r e v e n t i v e measures would b e b e t t e r accommodated i n t h e Standards and Recommended P r a c t i c e s embodied o r t o be embodied i n Annex 1 7 t o t h e Chicago Convention on I n t e r n a t i o n a l C i v i l A v i a t i o n o r i n t h e guidance m a t e r i a l contained i n t h e S e c u r i t y Manual. Those instruments would b e f l e x i b l e and would enable amendment by t h e Council t o respond t o any new c h a l l e n g e and any new modus o p e r a n d i of t h e c r i m i n a l elements. Any s p e c i f i c i d e a i n t h a t r e s p e c t t h a t you wish t o a d d r e s s t o t h e Council of I C A O could b e i n c o r p o r a t e d i n a r e s o l u t i o n of t h i s Conference and a t t a c h e d t o t h e F i n a l 'Act which you w i l l adopt.
Your t a s k i s d i f f i c u l t and r e s p o n s i b l e and we must send from t h i s Conference a s t r o n g s i g n a l emphasizing t h e f a c t t h a t a c t s of v i o l e n c e and unlawful i n t e r f e r e n c e aimed a g a i n s t i n t e r n a t i o n a l c i v i l a v i a t i o n , wherever and i n whatever form, a r e n o t t o be t o l e r a t e d by t h e i n t e r n a t i o n a l community.
I wish you f u l l s u c c e s s i n your endeavours."
2. The Acting P r e s i d e n t t h e n introduced t h e S e c r e t a r y General of I C A O , M r . Yves Lambert, a l s o a c t i n g a s t h e S e c r e t a r y General of t h e Conference, and i n v i t e d him t o i n t r o d u c e t h e members of t h e S e c r e t a r i a t s e r v i n g t h e meeting: D r . Michael Milde, D i r e c t o r of t h e I C A O Legal Bureau, a l s o s e r v i n g as t h e Executive S e c r e t a r y of t h e Conference, D r . Michel P o u r c e l e t , P r i n c i p a l Legal Kakkar, Legal O f f i c e r , D r . E.W. F a l l e r , S e n i o r Legal O f f i c e r and M r . G.M. Officer
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DRAFT F i r s t Plenary Meeting
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AGENDA ITEM 2:
ADOPTION OF THE RULES OF PROCEDURE
3. The Conference adopted t h e Rules of Procedure ini VIA Doc No. unanimous consent.
AGENDA ITEM 3 :
2 by
ADOPTION O THE AGENDA F
4. Having i n v i t e d o b s e r v a t i o n s on t h e P r o v i s i o n a l Agenda i n V I A Doc N o . i , and h e a r i n g none, t h e Acting P r e s i d e n t d e c l a r e d t h e Agenda of t h e Conference adopted.

AGENDA ITEM 4: ESTABLISHMENT O THE CREDENTIALS COMMITTEE F
5. I n a c c o r d a n c e w i t h R u l e 2(2), t h e C o n f e r e n c e e s t a b l i s h e d a C r e d e n t i a l s Committee and t h e Acting P r e s i d e n t nominated F i n l a n d , Cte d I v o i r e , Colombia, I n d o n e s i a and Hungary a s members of t h e C r e d e n t i a l s Committee and r e q u e s t e d t h a t a member of each of t h e s e d e l e g a t i o n s b e The Committee would m e e t a t t h e c l o s e of d e s i g n a t e d t o s i t on t h e Committee. t h e meeting, e l e c t i t s Chairman and make a p r e l i m i n a r y o r a l r e p o r t t o t h e Conference a t t h e n e x t meeting t o b e held i n t h e a f t e r n o o n .
AGENDA ITEM 5 : GENERAL STATEMENTS
6. The Chairman of t h e Delegation of Canada ( t h e Honourable Monique Vzina, M i n i s t e r of S t a t e f o r T r a n s p o r t of Canada) welcomed t h e d e l e g a t i o n s t o Canada, p a r t i c u l a r l y Montreal, where 18 months p r e v i o u s l y t h e M i n i s t e r of T r a n s p o r t of Canada had c a l l e d f o r t h e development of a new instrument on airport security. Within t h a t t i m e , Assembly R e s o l u t i o n A26-4 had been unanimously adopted, leading t o t h e convening of a s p e c i a l Legal Sub-committee whose r e p o r t was s u b s e q u e n t l y reviewed by t h e Legal Committee which u l t i m a t e l y produced t h e e x i s t i n g t e x t which would be reviewed and adopted by t h e p r e s e n t Conference. The speed w i t h which t h i s p r o c e s s had t a k e n p l a c e r e f l e c t e d t h e importance a t t r i b u t e d t o t h e f i g h t a g a i n s t i n t e r n a t i o n a l t e r r o r i s m . She noted t h a t h e r government had g i v e n t h e matter t o p p r i o r i t y and had e s t a b l i s h e d a programme designed t o s u p p o r t developing S t a t e s i n t h e i r e f f o r t s t o improve aviation security. She d e s c r i b e d a p r o j e c t i n t h e Caribbean, due t o b e completed by 1989, where s e c u r i t y p l a n s f o r 17 a i r p o r t s had been completed, and a new s e c u r i t y awareness programme was being developed, i n v o l v i n g t h e d e l i v e r y of new s e c u r i t y equipment and s e c u r i t y t r a i n i n g c o u r s e s , some of which had a l r e a d y been g i v e n . I n o t h e r r e g i o n s , f i e l d m i s s i o n s were being i n i t i a t e d t o e v a l u a t e t h e s e c u r i t y needs of l o c a l a u t h o r i t i e s and would, s h e added, c o n t i n u e f o r t h e next four years. I n Montreal, t h e I n t e r n a t i o n a l A v i a t i o n Management T r a i n i n g I n s t i t u t e , i n a d d i t i o n t o i t s r e g u l a r c u r r i c u l u m , would b e o f f e r i n g a three-week c o u r s e on a v i a t i o n s e c u r i t y management. I n bringing these projects t o t h e a t t e n t i o n of t h e Conference, t h e D e l e g a t e of Canadas i n t e n t i o n w a s t o s t r e s s t h e importance of b i l a t e r a l and m u l t i l a t e r a l co-operation i n a d d i t i o n t o l e g a l measures i n s t r e n g t h e n i n g a v i a t i o n s e c u r i t y . I n t h i s r e s p e c t , she expressed h e r governments concern t h a t t h i s important c o - o p e r a t i o n could b e undermined by ICAOs c u r r e n t f i n a n c i a l s i t u a t i o n , and t h a t Canada had t a k e n a n c o n c r e t e s t e p by paying i t s a s s e s s e d 1988 c o n t r i b u t i o n a t t h e end of 1987. O t h e s u b j e c t of a new instrument t o extend t h e p r o v i s i o n s of t h e Montreal Convention, t h e Canadian D e l e g a t i o n would n o t d e b a t e t h e s o l u t i o n s proposed by t h e Legal Committee, b u t would focus i t s a t t e n t i o n on t h e f o l l o w i n g i s s u e s :
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j u r i s d i c t i o n and e x t r a d i t i o n , p r e v e n t i v e measures, p a r t i c i p a t i o n of S t a t e s i n t h e new instrument i f n o t p a r t i e s t o t h e Montreal Convention, and a i r c r a f t n o t in service a t the airport. Her d e l e g a t i o n favoured s o l u t i o n s t h a t would lead t o t h e widest p o s s i b l e p a r t i c i p a t i o n by S t a t e s i n t h e new instrument. She b e l i e v e d t h a t what would e n a b l e t h e Conference t o a c h i e v e i t s g o a l and open t h e new instrument f o r s i g n a t u r e a t t h e conclusion of t h e Conference was t h e c o n v i c t i o n shared by a l l t h a t i n t e r n a t i o n a l t e r r o r i s m must b e fought and n o t excused n o r t o l e r a t e d .
7. The D e l e g a t e of Peru s t r e s s e d t h e importance h i s government a t t a c h e d t o combatting a l l forms of t e r r o r i s m , which had r e c e n t l y e s c a l a t e d i n P e r u , and s a i d t h a t it was u s i n g a l l l e g a l r e c o u r s e s a v a i l a b l e w h i l e always r e s p e c t f u l of human r i g h t s . H e remarked t h a t t h e i n t e r n a t i o n a l a i r p o r t a t L i m a had been t h e scene of t e r r o r i s t a t t a c k s , and as a r e s u l t s t r i c t s e c u r i t y measures had been implemented t o avoid a r e c u r r e n c e . Drug t r a f f i c k i n g had played a major r o l e i n t h e r i s e of t e r r o r i s t a c t i v i t i e s i n Peru and t h e government was combatting b o t h , u s i n g t h e f o r c e s of o r d e r and t h e army w i t h i n t h e l i m i t s e s t a b l i s h e d by law. For t h e s e r e a s o n s , t h e Delegate of Peru b e l i e v e d t h a t t h e d r a f t prepared by t h e Legal Committee responded t o t h e requirements of t h e i n t e r n a t i o n a l community and t h a t w i t h some improvements and once approved by t h e Conference would b e a very important l e g a l t o o l t h a t S t a t e s could a v a i l themselves of i n t h e i r efforts t o stop international terrorism. I n t h i s r e s p e c t , he emphasized h i s d e l e g a t i o n s w i l l i n g n e s s t o Co-operate f u l l y i n t h e work of t h e Conference t o develop a p r o t o c o l supplementary t o t h e Montreal Convention which would b e , he b e l i e v e d , a s t e p forward i n t h e i n t e r e s t s of t h e s e c u r i t y of c i v i l a v i a t i o n , i n p a r t i c u l a r a t a i r p o r t s which s e r v e c i v i l a v i a t i o n .
8. The D e l e g a t e of Poland r e a f f inned h i s governments commitment t o a c t i v e l y p a r t i c i p a t e i n t h e d e l i b e r a t i o n s of t h e Conference with a view t o d r a f t i n g a f i n a l - v e r s i o n of an a c c e p t a b l e document. H i s delegations position was such t h a t t h e p r o t o c o l should encompass t h e widest p o s s i b l e range of i s s u e s and problems r e l a t i n g t o t h e s u p p r e s s i o n of a c t s of t e r r o r i s m p e r p e t r a t e d on t h e ground, s o t h a t no loopholes could be encountered which would n e c e s s i t a t e H e emphasized t h a t t h e t h e f o r m u l a t i o n of a n o t h e r instrument i n t h e f u t u r e . scope of t h e document should be expanded t o encompass a l l i n s t a l l a t i o n s intended f o r u s e i n f l i g h t o p e r a t i o n s , such a s ATC c e n t r e s , l o c a t e d beyond t h e H i s d e l e g a t i o n a l s o supported t h e need t o i n t e n s i f y co-operation airport. among member S t a t e s of ICAO and t h e s e v e r e punishment of o f f e n d e r s . In this r e g a r d , h i s d e l e g a t i o n w a s s t r o n g l y i n f a v o u r of e x t r a d i t i o n as t h e most e f f e c t i v e means t o be used as a d e t e r r e n t t o t e r r o r i s m , and s a i d thought should b e g i v e n t o which S t a t e should b e given p r e f e r e n c e i n t h e e x t r a d i t i o n of o f f e n d e r s , be it t h a t S t a t e which had s u f f e r e d t h e most damage, t h e S t a t e of r e g i s t r a t i o n of t h e a i r c r a f t , o r t h e S t a t e where t h e o f f e n c e w a s committed. In c l o s i n g , he remarked t h a t i n t h e f u t u r e , n e c e s s a r y a c t i o n s should b e t a k e n through I C A O t o supplement t h e Tokyo, The Hague and Montreal Conventions s o t h a t t h e y would encompass o p t i o n a l p r o v i s i o n s r e l a t i n g t o e x t r a d i t i o n and a l l a s p e c t s of c o - o p e r a t i o n among S t a t e s f o r t h e s u p p r e s s i o n of t e r r o r i s m i n c i v i l aviation.
The Delegate of t h e Republic of Korea, r e f l e c t i n g upon t h e Tokyo, 9. The Hague and Montreal Conventions, noted t h a t t h e s e were a l l p r o d u c t s of t h e concerted e f f o r t of t h e i n t e r n a t i o n a l community t o combat unlawful a c t s of v i o l e n c e , and t h a t t h e d r a f t p r o t o c o l t o amend t h e Montreal Convention w a s but
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an e l a b o r a t i o n of e x i s t i n g i n t e r n a t i o n a l laws and was g e n e r a l l y a c c e p t a b l e t o I n e x p r e s s i n g t h e hope t h a t a l l p a r t i c i p a t i n g S t a t e s adopt t h e h i s delegation. d r a f t i n s t r u m e n t , he d e c l a r e d t h a t t h i s would i n d i c a t e a s i g n i f i c a n t s t e p forward i n s t r e n g t h e n i n g t h e s a f e t y of i n t e r n a t i o n a l c i v i l a v i a t i o n . He a l s o remarked t h a t S t a t e s should n o t be o v e r l y complacent and b e l i e v e d t h i s t o be t h e opportune time t o mention two r e c e n t a c t s of t e r r o r i s m agains.t c i v i l a v i a t i o n , of which t h e Republic of Korea had been t h e p r M e v i c t i m . The f i r s t i n c i d e n t he c i t e d was one which had occurred a t Kimpo I n t e r n a t i o n a l A i r p o r t i n Seoul on 16 September 1986, i n which a bomb had exploded, k i l l i n g f i v e persons H e believed the casualties and i n j u r i n g 30, and damaging a i r p o r t p r o p e r t y . As would have been g r e a t e r had t h e e x p l o s i o n t a k e n p l a c e d u r i n g peak h o u r s . t h i s i n c i d e n t had occurred a s t h e 1986 Asian Games were about t o begin, h i s government concluded. t h i s e x p l o s i o n t o be t h e work of t e r r o r i s t s designed t o s c a r e v i s i t o r s and a t h l e t e s a l i k e from a t t e n d i n g t h e games. Following t h i s i n c i d e n t , a i r p o r t s e c u r i t y had been t i g h t e n e d and t h e games were s u c c e s s f u l l y completed w i t h o u t f u r t h e r i n c i d e n t . The D e l e g a t e of t h e Republic of Korea c o n s i d e r e d t h e second i n c i d e n t t o be one of t h e most horrendous and barbarous a c t s of v i o l e n c e t o have been H e r e f e r r e d t o t h e d i s a p p e a r a n c e of KAL committed a g a i n s t c i v i l a v i a t i o n . F l i g h t 858 o v e r t h e Andaman Sea on 29 November 1987, when i t was en r o u t e from Abu Dhabi t o Seoul, r e s u l t i n g i n 115 c a s u a l t i e s . H e noted t h a t t h e two s u s p e c t s , a female and h e r dead male companion, who were t r a c e d t o and subsequently apprehended a t t h e Manama A i r p o r t i n Bahrain through t h e co-operation of t h e concerned governments, had been r e l e a s e d t o t h e a u t h o r i t i e s of t h e Republic of Korea i n accordance w i t h t h e s p i r i t and r e l e v a n t p r o v i s i o n s of t h e Montreal Convention. A f t e r a month-long i n v e s t i g a t i o n and i n t e r v i e w s w i t h t h e female s u s p e c t , h i s government had m a d e p u b l i c t h e f o l l o w i n g information: t h e s u s p e c t s , who had stopped a t s e v e r a l i n t e r n a t i o n a l a i r p o r t s b e f o r e t h e i r disembarkation a t Abu Dhabi, l e f t a r a d i o time bomb on board t h e a i r c r a f t which exploded i n mid-air. The government of t h e Republic of Korea concluded t h a t t h e couple were s p e c i a l l y t r a i n e d North Korean a g e n t s a c t i n g on t h e a u t h o r i t y of t h a t government. H e i n t i m a t e d t h a t t h i s t e r r o r i s t a c t w a s i n f l a g r a n t v i o l a t i o n of t h e i n t e r n a t i o n a l l e g a l codes i n c l u d i n g t h e Tokyo and Montreal Conventions, t o which North Korea, a n ICAO member S t a t e , was a signatory State.
10. The D e l e g a t e of B u l g a r i a i n t e r v e n e d on a p o i n t of o r d e r , and t o know i f t h e a t t a c k of a member S t a t e n o t p r e s e n t was r e l e v a n t approved Agenda of t h e Conference. The Acting P r e s i d e n t appealed D e l e g a t e of t h e Republic of Korea t o l i m i t h i s r e p a r k s t o items i n t h e of t h e Conference.
wished t o the t o the Agenda
11. The D e l e g a t e of t h e Republic of Korea f e l t t h a t h i s s t a t e m e n t s were w i t h i n t h e framework of t h e agenda b u t agreed t o comply w i t h t h e r e q u e s t of t h e Acting P r e s i d e n t . H e continued by s t a t i n g t h a t i n h i s o p i n i o n N o r t h Korea should n o t be regarded as a q u a l i f i e d member S t a t e of I C A O u n l e s s it adhered t o t h e r e g u l a t i o n s , and i n d i c a t e d t h a t approximately 60 ICAO member S t a t e s and s e v e r a l i n t e r n a t i o n a l o r g a n i z a t i o n s had condemned t h e North Korean a c t of t e r r o r i s m and some S t a t e s had imposed s a n c t i o n s a g a i n s t North Korea. While t h e main purpose of h i s d e l e g a t i o n a t t h i s Conference w a s n o t t o condemn t h e North Korean a c t of t e r r o r i s m , h e n e v e r t h e l e s s c o n s i d e r e d t h a t some l e s s o n s r e l a t i n g t o t h e s e c u r i t y of c i v i l a v i a t i o n could be l e a r n e d . Noting t h a t t h e s u s p e c t s
-21
had been a b l e t o p a s s s u c c e s s f u l l y through s e v e r a l a i r p o r t and a i r l i n e s e c u r i t y procedures a t t h e i n t e r n a t i o n a l a i r p o r t s concerned, he considered t h e s e c u r i t y checks f o r t r a n s i t passengers i n e f f e c t i v e . Measures t o check carry-on baggage were a l s o inadequate, he f e l t , as t h e bomb had been c a r r i e d aboard t h e aircraft. He a l s o wondered whether Co-ordination between immigration and s e c u r i t y a t i n t e r n a t i o n a l a i r p o r t s could be improved a s forged p a s s p o r t s t h e s u s p e c t s had been u s i n g had n o t been noted a t f i v e i n t e r n a t i o n a l a i r p o r t s . T h e r e f o r e , h i s d e l e g a t i o n was of t h e o p i n i o n t h a t o n l y t h e concerted e f f o r t s of t h e i n t e r n a t i o n a l community could prevent t h e r e c u r r e n c e of such t r a g i c i n c i d e n t s and t h a t t h e e x i s t i n g Conventions must be examined f o r any d e f i c i e n c i e s i n o r d e r t o improve t h e s a f e t y of i n t e r n a t i o n a l c i v i l a v i a t i o n . He s t r e s s e d t h e i m p e r a t i v e need f o r t h e i n t e r n a t i o n a l community t o e r a d i c a t e a l l forms of t e r r o r i s m a g a i n s t c i v i l a v i a t i o n .
12. The Delegate of t h e Union of S o v i e t S o c i a l i s t Republics i n t e r v e n e d on a p o i n t of o r d e r t o e x p r e s s h i s d e l e g a t i o n s concern t h a t t h e s t a t e m e n t made was n o t w i t h i n t h e realm of t h e Rules of Procedure and w a s d i s r u p t i n g t h e normal procedures of t h e Conference. The Acting P r e s i d e n t noted t h e p o i n t of o r d e r , which had p r e v i o u s l y been made by t h e Delegate of B u l g a r i a , s t a t i n g t h a t t h e Conference had been convened t o c o n s i d e r a d r a f t p r o t o c o l and asked t h e Delegate of t h e Republic of Korea t o r e f r a i n from making any s t a t e m e n t s n o t r e l e v a n t t o items i n t h e agenda.
13. The Delegate of t h e Republic of Korea resumed by s t a t i n g t h a t S t a t e s must c o n t i n u e i n t h e i r e f f o r t s t o ensure t h a t e x p l o s i v e s and o t h e r high-tech d e v i c e s were d e t e c t e d b e f o r e being brought onboard a i r c r a f t . H i s government, i n c o - o p e r a t i o n w i t h o t h e r g o v e r n m e n t a u t h o r i t i e s and i n t e r n a t i o n a l o r g a n i z a t i o n s , had begun t o implement s t r i c t e r s e c u r i t y measures, such a s more r i g o r o u s passenger s c r e e n i n g and t i g h t e r baggage checks, i n view of t h e upcoming summer Olympic Games t o be held i n t h e Republic of Korea. I n c l o s i n g , he added t h a t he b e l i e v e d t h e i n t e r n a t i o n a l community could j o i n t o g e t h e r i n f a c i n g t h e c h a l l e n g e s of making i n t e r n a t i o n a l c i v i l a v i a t i o n s a f e and s e c u r e , and he was c e r t a i n t h a t t h e Conference would mark a g i a n t s t e p forward i n t h e development of a i r l a w t h a t would a c c e l e r a t e i n t e r n a t i o n a l co-operation i n f i g h t i n g t e r r o r i s m , t h e r e b y s t r e n g t h e n i n g t h e s a f e t y of i n t e r n a t i o n a l c i v i l aviation.
14. Before a d j o u r n i n g t h e meeting, t h e Acting P r e s i d e n t announced t h a t up t o t h e p r e s e n t 64 S t a t e s and f i v e i n t e r n a t i o n a l o r g a n i z a t i o n s f o r a t o t a l of 222 p a r t i c i p a n t s had r e g i s t e r e d .
(The meeting adjourned a t 1240 h o u r s )
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Not for Resale
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Not for Resale
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DRAFT Second P l e n a r y Meeting
SECOND PLENARY MEETING (Tuesday, 9 February 1988, a t 1430 h o u r s )
Acting P r e s i d e n t :
D r . Assad K o t a i t e , P r e s i d e n t of t h e I C A 0 Council
PRELIMINARY REPORT OF THE CREDENTIALS COMMITTEE
1. A t t h e i n v i t a t i o n of t h e Acting P r e s i d e n t , t h e Chairman of t h e C r e d e n t i a l s Committee (Delegate of Colombia) gave a p r e l i m i n a r y r e p o r t of t h e C r e d e n t i a l s Committee, i n d i c a t i n g t h a t 67 S t a t e s and seven i n t e r n a t i o n a l o r g a n i z a t i o n s had r e g i s t e r e d a s of 1400 h o u r s , and t h a t 45 S t a t e s and s i x i n t e r n a t i o n a l o r g a n i z a t i o n s had presented c r e d e n t i a l s i n due and proper form. The C r e d e n t i a l s Committee recommended t h a t , pursuant t o Rule 3 of t h e Rules of Procedure, a l l d e l e g a t i o n s r e g i s t e r e d be a u t h o r i z e d t o p a r t i c i p a t e i n t h e work of t h e Conference.
AGENDA ITEM 5:
GENERAL STATEMENTS
2. The D e l e g a t e of Saudi Arabia expressed t h e hope t h a t t h e Conference would h e l p s t r e n g t h e n and f o s t e r understanding between S t a t e s t o work t o g e t h e r and s t r i v e t o keep i n t e r n a t i o n a l c i v i l a v i a t i o n f r e e from v i o l e n c e , danger and disruption. He s t a t e d t h a t t h e s a f e t y and s e c u r i t y a t a i r p o r t s was n e c e s s a r y f o r i n t e r n a t i o n a l c i v i l a v i a t i o n t o f u n c t i o n and t h a t t e r r o r i s m should n o t c o n t r o l i t s d e s t i n y and t h a t unlawful a c t s of v i o l e n c e must be suppressed and fought wherever and whenever found. He p r a i s e d t h e Legal Committees e f f o r t t h a t had led t o t h e development of a d r a f t instrument f o r t h e s u p p r e s s i o n of a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n and expressed h i s d e l e g a t i o n s confidence t h a t t h e Conference would endorse an instrument t o that effect. I n expressing t h e hope t h a t t h e Conference would be a b l e t o demonstrate t h e d e t e r m i n a t i o n of t h e i n t e r n a t i o n a l a v i a t i o n community t o e r a d i c a t e a l l forms of unlawful a c t s a g a i n s t c i v i l a v i a t i o n , he r e i t e r a t e d h i s d e l e g a t i o n s acceptance of t h e t e x t as proposed, a t t h e same time s t a t i n g t h a t t h e y were ready t o support any improvements r e s u l t i n g from d e l i b e r a t ions t h a t would lead t o a wider s a t i s f a c t i o n and acceptance of a new instrument t h a t would once and f o r a l l e r a d i c a t e a l l forms of v i o l e n c e a t i n t e r n a t i o n a l a i r p o r t s serving i n t e r n a t i o n a l c i v i l aviation.
3. The D e l e g a t e of Sweden, speaking on b e h a l f of t h e Nordic D e l e g a t i o n s , namely Denmark, F i n l a n d , I c e l a n d , Norway and Sweden, expressed t h e o p i n i o n t h a t t h e d r a f t p r o t o c o l prepared by t h e Legal Committee was on t h e whole well-balanced, and t h a t c e r t a i n d e b a t a b l e p o i n t s d i d n o t undermine t h e fundamental o u t l i n e s of t h e work c a r r i e d o u t t h u s f a r . The f o r m u l a t i o n of such a p r o t o c o l , which t h e Nordic Delegation f e l t would b e s u c c e s s f u l l y completed b e f o r e t h e end of t h e Conference, would be an important s t e p forward i n t h e f i g h t a g a i n s t t e r r o r i s m , and a v a l u a b l e complement t o t h e e x i s t i n g Conventions r e l a t e d t o t h e s a f e t y of i n t e r n a t i o n a l c i v i l a v i a t i o n . The o b l i g a t i o n s of S t a t e s n o t o n l y stemmed from Conventions, he added, b u t from fundamental r u l e s of common i n t e r n a t i o n a l l a w . H e noted t h a t , w i t h two conferences being held i n
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s u c c e s s i o n , t h e p r e s e n t Conference preceding t h e Conference t o be held i n Rome under t h e a e g i s of t h e I n t e r n a t i o n a l Maritime O r g a n i z a t i o n r e l a t i n g t o a Convention f o r t h e s u p p r e s s i o n of unlawful a c t s a g a i n s t t h e s a f e t y of m a r i t i m e n a v i g a t i o n and of f i x e d p l a t f o r m s l o c a t e d on t h e c o n t i n e n t a l s h e l f , S t a t e s were demonstrating t h e i r r e s o l u t e n e s s i n t h i s r e s p e c t . I n c l o s i n g , h e asked f o r t h e unequivocal i n t e r n a t i o n a l condemnation of t h e r e c e n t a c t of t e r r o r i s m a g a i n s t KAL F l i g h t 858 which was, he d e c l a r e d , one of t h e most s e r i o u s c a s e s of terrorism against a c i v i l a i r c r a f t in recent years.
4. The D e l e g a t e of t h e Union of S o v i e t S o c i a l i s t Republics remarked t h a t t h e Conference w a s evidence of ICAOs important r o l e i n developing Co-ordination and co-operation among S t a c e s i n t h e f i e l d of i n t e r n a t i o n a l c i v i l a v i a t i o n and t h a t S t a t e s had come t o develop and adopt an important instrument and s h o u l d r e f r a i n f r o m d i s r u p t i n g n o r m a l p r o c e e d i n g s , r e c a l l i n g t h e a l l e g a t i o n s t h a t had been made a g a i n s t t h e Democratic Peoples Republic of H i s d e l e g a t i o n , a s no doubt a l l d e l e g a t i o n s , Korea a t t h e p r e v i o u s meeting. f e l t deeply moved by s e n s e l e s s d e a t h s , e s p e c i a l l y r e s u l t i n g from t e r r o r i s m , b u t questioned t h e grounds on which t h e c o n c l u s i o n s had been drawn. The Conference faced t h e important t a s k of s t r e n g t h e n i n g co-operation among S t a t e s t o e n s u r e s e c u r i t y a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n and p r o t e c t i n g human rights. He e l a b o r a t e d on t h e p r o g r e s s t h a t had been made i n t h i s r e s p e c t , a l l u d i n g t o t h e Soviet-American summit, b u t observed t h a t d e s p i t e t h e p r o g r e s s made i n some a r e a s , t h e r e were s t i l l phenomena t h a t e x i s t e d such a s i n t e r n a t i o n a l t e r r o r i s m , a n e v i l which h i s d e l e g a t i o n u n r e s e r v e d l y condemned. Since h i s d e l e g a t i o n b e l i e v e d t h a t i n t e r n a t i o n a l co-operation was one of t h e p r i n c i p a l b a s e s f o r t h e development of an all-embracing system of i n t e r n a t i o n a l s e c u r i t y , broad and c o n s i s t e n t a p p l i c a t i o n of agreements on t h e s e c u r i t y of That w a s why h i s i n t e r n a t i o n a l c i v i l a v i a t i o n s h o u l d be c a r r i e d o u t . d e l e g a t i o n was convinced of t h e importance of S t a t e s becoming p a r t i e s and adhering s t r i c t l y t o t h e . p r o v i s i o n s of t h e Tokyo, The Hague and Montreal Conventions. It was no l e s s i m p o r t a n t , he f e l t , t o develop new i n s t r u m e n t s f o r a r e a s t h a t were n o t y e t r e g u l a t e d which would d e m o n s t r a t e t h a t t h e i n t e r n a t i o n a l community was ensuring t h e s a f e t y of international c i v i l aviation. I n t h i s r e s p e c t , t h e d r a f t p r o t o c o l was a n important document t h a t would h e l p e l i m i n a t e t h i s gap and t h e S o v i e t D e l e g a t i o n , e x p r e s s i n g t h e c o n v i c t i o n t h a t t h e Conference would be conducted i n a n atmosphere of mutual understanding and co-operation, w a s prepared t o examine i n a p o s i t i v e f a s h i o n amendments and p r o p o s a l s d i r e c t e d d t improving t h i s d r a f t p r o t o c o l which, when approved, would make a s u b s t a n t i v e c o n t r i b u t i o n t o improving t h e s a f e t y of i n t e r n a t ional ci v i1 aviation.
5. The D e l e g a t e of t h e United S t a t e s noted t h a t ICAO had d e d i c a t e d i t s e l f t o t h e promotion of s a f e t y i n i n t e r n a t i o n a l c i v i l a v i a t i o n throughout t h e y e a r s and had pioneered t h e development of l e g a l i n s t r u m e n t s i n which S t a t e s had u n i t e d i n e f f o r t s t o combat a c t s of t e r r o r i s m t h a t t h r e a t h e n e d international c i v i l aviation. I n t h i s r e g a r d , s h e a l s o noted t h a t t h e Organization had been r e l e n t l e s s i n demonstrating i t s f i r m r e s o l v e and commitment and t h a t S t a t e s would n o t a c c e p t such behaviour and would Co-operate t o p r e v e n t such a c t s and p u n i s h p e r p e t r a t o r s . She s t a t e d t h a t ICAO had once a g a i n t a k e n determined s t e p s t o e r a d i c a t e a l l forms of t e r r o r i s m by t h e unanimous d e c i s i o n t a k e n by t h e ICAO Assembly t o d r a f t a new instrument t o promote and p r o t e c t s a f e t y a t i n t e r n a t i o n a l a i r p o r t s . The d r a f t instrument c o n t a i n e d a c a r e f u l b a l a n c e of t h e views of a l l S t a t e s t h a t had a c t i v e l y
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- 25 -
Her d e l e g a t i o n b e l i e v e d t h a t t h e Conference p a r t i c i p a t e d i n i t s formulation. should focus on concluding an instrument t h a t would become e f f e c t i v e without d e l a y and t h a t t h i s would b e s t be m e t by a p r o t o c o l supplementary t o t h e Montreal Convention, which would be a v i t a l t o o l i n t h e c o n t i n u i n g f i g h t against international terrorism. She remarked t h a t t h e Conference would make an important c o n t r i b u t i o n t o t h e s e c u r i t y i n t e r e s t s of a l l S t a t e s as w e l l as t h e i r c i t i z e n s , and would send a message t o t h o s e contemplating p e r p e t r a t i n g a c t s of v i o l e n c e a g a i n s t persons o r p r o p e r t y a t i n t e r n a t i o n a l a i r p o r t s t h a t such v i o l e n c e would n o t b e t o l e r a t e d . F i n a l l y s h e c a l l e d f o r t h e i n t e r n a t i o n a l condemnation of t h e a c t of s e n s e l e s s v i o l e n c e t h a t had been p e r p e t r a t e d a g a i n s t KAL F l i g h t 858, a s i t had i m p l i c a t i o n s f o r t h e s a f e t y of i n t e r n a t i o n a l c i v i l aviation. H e r government concurred w i t h t h e c o n c l u s i o n s reached by t h e Government of t h e Republic of Korea and shared i t s s e n s e of shock and r e v u l s i o n a t t h i s a c t of v i o l e n c e . She added t h a t i t was t h e r e f o r e important f o r t h e Conference t o redouble i t s e f f o r t s t o reach agreement on t h e important new l e g a l instrument and b r i n g t h e Conference t o a s u c c e s s f u l c o n c l u s i o n .
6. The D e l e g a t e of t h e United Kingdom i n d i c a t e d t h a t h i s government had supported t h e work which had t a k e n p l a c e t o combat a c t s of v i o l e n c e d i r e c t e d a g a i n s t c i v i l a v i a t i o n and had taken f i r m p r a c t i c a l measures t o combat terrorism. D e s p i t e t h e p r o g r e s s made, he b e l i e v e d t h e r e was no room f o r complacency and r e g r e t t e d t h a t a c t s of v i o l e n c e a g a i n s t c i v i l a v i a t i o n were In c o n t i n u i n g , amply demonstrating t h e need f o r i n t e r n a t i o n a l co-operation. view of t h e examples of i n d i s c r i m i n a t e a c t s a g a i n s t i n t e r n a t i o n a l c i v i l a v i a t i o n mentioned e a r l i e r , h e expressed h i s governments empathy w i t h t h e v i c t i m s , s t a t i n g t h a t h i s government had p r e v i o u s l y condemned t h e s e a c t s . With regard t o t h e work of t h e Conference, he r e i t e r a t e d i t s t a s k a s t o d e f i n e which a c t s should b e s i n g l e d o u t f o r i n t e r n a t i o n a l j u r i s d i c t i o n so t h a t no p e r p e t r a t o r could escape wherever found, and s t i p u l a t e d t h a t t h e Conference should a s c e r t a i n t h a t t h e d e f i n i t i o n of t h e o f f e n c e s t o b e covered was c o r r e c t H e n e v e r t h e l e s s noted and broad s o t h a t no loopholes could b e encountered. t h a t a c o r r e c t b a l a n c e should b e achieved s o t h a t what w a s covered would b e e a s i l y d i s t i n g u i s h a b l e from t h a t n o t covered. H e b e l i e v e d t h a t no S t a t e s should be discouraged from s u b s c r i b i n g t o t h e p r o t o c o l because it could p o s s i b l y cover what t h e y b e l i e v e d should be covered by t h e i r domestic laws, t h a t t h e r e would be no d i f f i c u l t i e s i n applying t h e p r o t o c o l by means of domestic laws, and t h a t t h e p r o t o c o l should i n d i c a t e why some a c t s were included t o t h e e x l u s i o n of o t h e r s . The D e l e g a t i o n of t h e United Kingdom considered t h a t , a s t h e r e was no i n t e r n a t i o n a l l y accepted d e f i n i t i o n of t e r r o r i s m , t h e q u e s t i o n of a p p r o p r i a t e q u a l i f y i n g c r i t e r i a should b e d i s c u s s e d His and had produced a working paper f o r c o n s i d e r a t i o n by t h e Conference. d e l e g a t i o n , n o t i n g t h e p r a c t i c a l and important work b e f o r e t h e Conference, would a c t i v e l y p a r t i c i p a t e i n t h e c r e a t i o n of a p r o t o c o l t o e n s u r e t h e s u c c e s s f u l outcome of t h e Conference.
--`,,```,,,,````-`-`,,`,,`,`,,`---
7. The D e l e g a t e of Japan expressed h i s a p p r e c i a t i o n f o r t h e i n i t i a t i v e taken by Canada i n r e q u e s t i n g t h a t a l e g a l instrument d e a l i n g w i t h t h e s a f e t y of i n t e r n a t i o n a l c i v i l a v i a t i o n a t a i r p o r t s b e formulated and thanked ICA0 f o r i t s p r e p a r a t i o n of t h e Conference. He was encouraged by t h e l a r g e number of S t a t e s which were p a r t i c i p a t i n g t o c o n t r i b u t e t o t h e c r e a t i o n of a new l e g a l instrument f o r t h e s u p p r e s s i o n of i n t e r n a t i o n a l t e r r o r i s m . H e believed that t h e Conference had been convened a t an important moment i n a v i a t i o n s e c u r i t y f o r , d e s p i t e t h e growing c a l l f o r t h e e f f e c t i v e s u p p r e s s i o n of t e r r o r i s m and
Not for Resale
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expansion and improvement of i n t e r n a t i o n a l co-operation, a c t s of v i o l e n c e H e considered t h a t a g a i n s t c i v i l a v i a t i o n were n o n e t h e l e s s ,being p e r p e t r a t e d . expanding t h e l e g a l framework a t t h e i n t e r n a t i o n a l l e v e l by o b l i g i n g S t a t e s t o e i t h e r e x t r a d i t e o r r e f e r p e r p e t r a t o r s of such a c t s t o t h e a p p r o p r i a t e a u t h o r i t i e s f o r p r o s e c u t i o n , i n a d d i t i o n t o i n t e n s i f y i n g e f f o r t s t o develop and implement t h e n e c e s s a r y p r e v e n t i v e measures, would b e t h e most r e a l i s t i c and In t h i s e f f e c t i v e approach f o r t h e s u p p r e s s i o n of i n t e r n a t i o n a l t e r r o r i s m . r e s p e c t , h i s d e l e g a t i o n was p l e a s e d with t h e d r a f t prepared by t h e Legal Committee and h e r e a f f i r m e d Japans i n t e n t i o n t o co-operate w i t h I C A 0 member S t a t e s i n t h e i r e f f o r t s t o improve a v i a t i o n s e c u r i t y . Alluding t o t h e s t a t e m e n t p r e v i o u s l y made by t h e Delegate of t h e Republic of Korea, he r e a f f irmed Japans c o n v i c t i o n t h a t t e r r o r i s m a g a i n s t c i v i l a i r c r a f t was inexcusable and he maintained t h a t t h e t e r r o r i s t a c t i n s t i g a t e d by whom h i s government b e l i e v e d t o be North Korea should b e s t r o n g l y condemned and spurned by t h e i n t e r n a t i o n a l community s o t h a t such an a c t n e v e r r e c u r .
8. The d e c l a r e d t h a t h i s d e l e g a t i o n , having c h a i r e d t h e Legal Commission a t t h e 26th S e s s i o n of t h e Assembly and having a c t i v e l y p a r t i c i p a t e d i n t h e Legal Sub-committee and t h e Legal Committee, had come t o t h e Conference w i t h t h e f i r m purpose of c a r r y i n g o u t t h e work i n a p r o d u c t i v e manner t o o b t a i n e f f e c t i v e r e s u l t s . He s t a t e d t h a t a c t s of v i o l e n c e a t a i r p o r t s r e p r e s e n t e d a p r e s s i n g and important problem which j e o p a r d i z e d t h e normal development of i n t e r n a t i o n a l c i v i l a v i a t i o n , enumerating some s t a t i s t i c s on a c t s of v i o l e n c e which had led t o a c e r t a i n i n s e c u r i t y i n t h e i n t e r n a t i o n a l community. H e i n d i c a t e d t h a t t h e work of t h e Conference should b e based on t h e p r i n c i p l e s of j u s t i c e and must t a k e i n t o account t h e good of humanity and t h e A t t h e same t i m e , i t was important improvement of r e l a t i o n s between S t a t e s . n o t t o superimpose on t h e domestic laws of S t a t e s t o e n a b l e s u p p r e s s i o n t o b e e f f e c t i v e . Another p r i n c i p l e which had t o be t a k e n i n t o a c c o u n t , he f e l t , was t h e p r o t e c t e d l e g a l i n t e r e s t n o t o n l y of t h e s a f e t y of c i v i l a v i a t i o n b u t a l s o t h e proper o p e r a t i o n of a i r p o r t s , and b o t h should be r e f l e c t e d c l e a r l y and unambiguously i n t h e instrument. The t h r e e fundamental a s p e c t s of t h i s t y p e of o f f e n c e were t h e s e r i o u s n e s s of o f f e n c e , t h e i n t e r n a t i o n a l element and t h e complexity w i t h r e s p e c t t o p r o t e c t e d l e g a l i n t e r e s t s . Argentina would put f o r t h some amendments t o t h e proposed d r a f t instrument i n t h e hope of making it p o s s i b l e t o i n c o r p o r a t e t h e e s t a b l i s h m e n t of s e v e r e p e n a l t i e s i n t o domestic legislation. He expressed t h e hope t h a t t h e f i n a l d e c i s i o n of t h e Conference would e x p r e s s a u n i v e r s a l w i l l and t h a t t h e instrument adopted would b e e f f e c t i v e i n e l i m i n a t i n g o r s u b s t a n t i a l l y reducing t h e o c c u r r e n c e of unlawful a c t s a t a i r p o r t s serving international c i v i l aviation.
9. The D e l e g a t e of A u s t r a l i a s t a t e d t h a t t h e Conference provided an o p p o r t u n i t y f o r a l l p a r t i c i p a t i n g S t a t e s i n t e r e s t e d i n d e t e r r i n g a c t s of t e r r o r i s m a t a i r p o r t s t o conclude an e f f e c t i v e and widely a c c e p t a b l e agreement t o d e t e r and s u p p r e s s s e r i o u s a c t s o f v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n ; h i s governments main o b j e c t i v e w a s t o e n s u r e t h a t such an agreement b e concluded by t h e end of t h e Conference. A u s t r a l i a s p r e f e r e n c e was t o have a s e p a r a t e convention d e a l i n g w i t h a c t s of v i o l e n c e a t a i r p o r t s , as opposed t o a p r o t o c o l amending t h e Montreal Convention, due t o t h e importance of t h e s u b j e c t and t h e f a c t t h a t o f f e n c e s committed a t a i r p o r t s could have d i f f e r e n t consequences and r a i s e d i f f e r e n t i s s u e s t h a n t h o s e H i s government would n o t , however, p r e s s i t s committed on board a i r c r a f t . p r o p o s a l f o r a s e p a r a t e convention. H e s t a t e d t h a t A u s t r a l i a a l s o supported
--`,,```,,,,````-`-`,,`,,`,`,,`---
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DRAFT
Second P l e n a r y Meeting
t h e i n c l u s i o n of o f f - a i r c r a f t f a c i l i t i e s and p e r s o n n e l i n t h e new i n s t r u m e n t , as p e r s o n s a t a i r p o r t s were a l r e a d y covered i n t h e Montreal Convention. His government a l s o advocated t h e i n c l u s i o n of t h e concept of t h r e a t , a s t h r e a t s t o commit a c t s of t e r r o r i s m a t a i r p o r t s could endanger t h e s a f e t y a t t h o s e a i r p o r t s , b u t r e c o g n i z i n g t h a t , should t h e agreement be formulated a s a p r o t o c o l t o t h e Montreal Convention, t h i s could prove t o b e d i f f i c u l t a s t h e H e a l s o wished t o e n s u r e t h a t t h e Convention i t s e l f d i d n o t cover t h r e a t . proposed agreement i n c l u d e t h e f i r i n g of missiles o r o t h e r d e v i c e s from o u t s i d e t h e a i r p o r t , a s he f e l t t h e r e would be s e r i o u s gaps i n t h e new instrument should t h i s n o t b e covered. A u s t r a l i a would wish t o m a i n t a i n a d e l i c a t e b a l a n c e between e x t r a d i t i o n and p r o s e c u t i o n t o e n s u r e t h a t no g r e a t e r p r i o r i t y be g i v e n t o e x t r a d i t i o n , and t o r e t a i n complete d i s c r e t i o n over e x t r a d i t i o n r e q u e s t s , i n accordance w i t h A r t i c l e 8 of t h e Montreal Convention. The A u s t r a l i a n Delegation would r a i s e t h e s e a s w e l l a s o t h e r less s u b s t a n t i v e p o i n t s d u r i n g t h e c o u r s e of t h e d e l i b e r a t i o n s , r e c o g n i z i n g t h a t t h e Legal Committee had provided t h e Conference w i t h a s o l i d f o u n d a t i o n w i t h which t o base i t s work, and c o n f i d e n t t h a t an a c c e p t a b l e and e f f e c t i v e instrument would be completed by t h e end of t h e Conference. The Delegate of - C h i l e remarked t h a t h i s d e l e g a t i o n b e l i e v e d t h e i n t e r n a t i o n a l community should have a l e g a l instrument which would immediately make p u n i s h a b l e unlawful a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n , a s t h e s e o f f e n c e s a f f e c t e d and endangered n o t o n l y p e r s o n a l s a f e t y b u t a l s o t h e normal o p e r a t i o n of a i r p o r t s , undermining t h e confidence S t a t e s should have i n t h e s a f e and o r d e r l y development of c i v i l a v i a t i o n . H i s d e l e g a t i o n thought t h a t t h e c r e a t i o n of c a t e g o r i e s of o f f e n c e s on a u n i v e r s a l b a s i s would complement t h e p r o g r e s s achieved i n t h e development of t e c h n i q u e s t o p r e v e n t unlawful a c t s , and a l s o complement t h e scope of t h e Tokyo, The Hague and Montreal Conventions, s i n c e t h e s e o f f e n c e s a f f e c t e d t h e o r d e r l y o p e r a t i o n of i n t e r n a t i o n a l a i r s e r v i c e s , t h u s g i v i n g r i s e t o g r e a t i n s e c u r i t y a t airports. H i s d e l e g a t i o n had p r e v i o u s l y noted t h a t a c t s of t e r r o r i s m had n o t been l i m i t e d t o a i r c r a f t i n f l i g h t , as was t h e c a s e i n t h e t r a g i c event of KAL, a t e r r o r i s t a c t condemned by C h i l e , b u t had spread t o i n t e r n a t i o n a l a i r p o r t s . This w a s why l e g a l means were a b s o l u t e l y e s s e n t i a l t o e n s u r e t h a t p e r p e t r a t o r s would be punished, w i t h i n a system of p r o s e c u t i o n and e x t r a d i t i o n s i m i l a r t o o f f e n c e s i n t h e Montreal Convention. For t h i s r e a s o n h i s d e l e g a t i o n b e l i e v e d t h a t t h e new instrument should t a k e t h e form of a p r o t o c o l supplementary t o t h e Montreal Convention so t h a t r a t i f i c a t i o n would be f a c i l i t a t e d , a s t h e new o f f e n c e s would n o t a l t e r t h e b a s i c p r o v i s i o n s of t h e Montreal Convention. The Chilean Delegation wished t o r e s e r v e t h e r i g h t t o d i s c u s s c e r t a i n issues when t h e d r a f t would be under c o n s i d e r a t i o n ; he s t r e s s e d t h a t i t condemned a l l forms of t e r r o r i s m , and considered t h a t p e r p e t r a t o r s of t e r r o r i s t a c t s a t a i r p o r t s should b e s e v e r e l y punished by a l l S t a t e s , i n accordance w i t h t h e d r a f t p r o t o c o l which would be adopted.
AGENDA ITEM 6 : ELECTION OF THE PRESIDENT OF THE CONFERENCE
10.
11. The Acting P r e s i d e n t having i n v i t e d nominations f o r P r e s i d e n t of t h e Conference, t h e Delegate of Saudi Arabia proposed M r . P h i l i p p e K i r s c h , Chief Delegate of t h e Canadian D e l e g a t i o n , and s i n c e 1983 D i r e c t o r of t h e Legal Operations D i v i s i o n i n t h e Department of E x t e r n a l A f f a i r s . H e remarked t h a t Mr. K i r s c h had r e p r e s e n t e d Canada a t numerous i n t e r n a t i o n a l c o n f e r e n c e s , and p a r t i c u l a r l y r e l e v e n t t o t h e p r e s e n t one, had been Chief Delegate of Canada a t
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DUFT Second - P l e n a r y Meeting -
- 28 -
t h e 26th S e s s i o n of t h e Legal Committee and Chairman of i t s Working Group. He had a l s o served a s Chief D e l e g a t e a t t h e 25th S e s s i o n of t h e Assembly ( E x t r a o r d i n a r y ) which had adopted A r t i c l e 3 b i s t o t h e Chicago Convention. M r . K i r s c h had r e c e n t l y a c t e d as t h e Chairman of t h e p r e p a r a t o r y committee of t h e IMO on t h e s u p p r e s s i o n of unlawful a c t s a g a i n s t t h e s a f e t y of m a r i t i m e n a v i g a t i o n . The D e l e g a t e of Saudi Arabia considered t h a t M r . K i r s c h , w i t h such an o u t s t a n d i n g background, would be a g r e a t a s s e t t o t h e Conference by a c t i n g as its President. The nomination o f M r . K i r s c h was f u l l y supported by t h e D e l e g a t e s of China, Egypt, F r a n c e , Ghana and Mexico. The D e l e g a t e s of Jamaica and t h e Union of S o v i e t S o c i a l i s t Republics r e f e r r e d t o M r . Kirschs o u t s t a n d i n g c o n t r i b u t i o n s toward t h e e l i m i n a t i o n of i n t e r n a t i o n a l t e r r o r i s m i n s u p p o r t i n g t h e nomination. The Delegates of C h i l e , Colombia, I n d i a , Kenya, P a k- and t h e United S t a t e s echoed t h e i r support f o r t h e nomination, istan r e f e r r i n g t o t h e e x c e l l e n t manner i n which he had conducted t h e d e l i b e r a t i o n s a s Chairman of t h e Working Group a t t h e 26th S e s s i o n of t h e Legal Committee. The Delegate of I t a l y endorsed t h e nomination and expressed h i s g r a t i t u d e f o r t h e way M r . K i r s c h had p r e s i d e d o v e r t h e p r e p a r a t o r y work f o r t h e I M O Conference t h a t would b e h e l d s h o r t l y .
12. The Delegates of C h i l e , Colombia, I n d i a , Jamaica, Mexico and United S t a t e s voiced e x p r e s s i o n s of g r a t i t u d e and a p p r e c i a t i o n t o t h e P r e s i d e n t of t h e I C A O Council f o r t h e e x c e l l e n t guidance he had provided t h u s f a r . 13. I n view of t h e overwhelming s u p p o r t , t h e Acting P r e s i d e n t d e c l a r e d M r . P h i l i p p e K i r s c h P r e s i d e n t of t h e Conference and i n v i t e d him t o t a k e t h e chair.
14. The P r e s i d e n t expressed h i s a p p r e c i a t i o n t o t h e D e l e g a t e o f Saudi Arabia f o r nominating him and thanked t h e numerous d e l e g a t i o n s which had supported t h e nomination. He r e f e r r e d t o D r . K o t a i t e s competence, h i s i n s p i r a t i o n w h i l e p r e s i d i n g over t h e Conference t h u s f a r , and f o r t h e e x c e l l e n t s t a r t he had encouraged. He a l s o expressed h i s g r a t i t u d e t o t h e Conference f o r i t s confidence i n e l e c t i n g him. H e g r e e t e d t h o s e he had had t h e o p p o r t u n i t y t o work w i t h i n t h e p a s t a s w e l l as t h e S e c r e t a r y General, D r . Milde and h i s c o l l e a g u e s i n t h e L e g a l Bureau. The P r e s i d e n t o f t h e I C A O C o u n c i l c o n g r a t u l a t e d M r . K i r s c h on h i s nomination and expressed c o n f i d e n c e t h a t t h e Conference would succeed i n c a r r y i n g o u t i t s d e s i g n a t e d t a s k under h i s a b l e leadership.
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DRAFT Third P l e n a r y Meeting
THIRD PLENARY MEETING

(Wednesday, 10 February 1988, a t 1000 h o u r s )
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P r e s i d e n t : M r . P. K i r s c h
AGENDA ITEM 5: GENERAL STATEMENTS
1. The p r e s e n t a t i o n of g e n e r a l s t a t e m e n t s resumed, commencing w i t h t h e Delegate of China who s t a t e d t h a t t h e opening of t h e Diplomatic Conference demonstrated t h e d e t e r m i n a t i o n of t h e i n t e r n a t i o n a l community t o s t r e n g t h e n i t s co-operation i n t h e f i g h t a g a i n s t u n l a w f u l a c t s of v i o l e n c e a g a i n s t i n t e r n a t i o n a l c i v i l a v i a t i o n and t o c o n s o l i d a t e t h e l e g a l regime s e t up by t h e Tokyo, The Hague and Montreal Conventions. China, being a p a r t y t o t h e s e their Conventions, has adopted domestic l e g i s l a t i o n t o t h e l i m i t s of provisions. The Chinese Delegation agreed t h a t t h e new instrument should t a k e t h e form of a P r o t o c o l supplementary t o t h e Montreal Convention, so as t o expand t h e scope of t h e Convention and t o h e l p b r i n g t h e P r o t o c o l i n t o f o r c e a t the e a r l i e s t date. I n regard t o t h e scope of a p p l i c a t i o n of t h e i n s t r u m e n t , t h e Chinese Delegation was of t h e view t h a t t h e concept of a i r p o r t f a c i l i t i e s b e r e s t r i c t e d t o t h o s e c l o s e l y r e l a t e d t o t h e o p e r a t i o n of t h e a i r p o r t . T h e i r p r e f e r e n c e on t h e s u b j e c t o f j u r i s d i c t i o n w a s f o r t h e e s t a b l i s h m e n t of u n i v e r s a l j u r i s d i c t i o n as adopted by t h e Montreal Convention and, on t h e e x t r a d i t i o n i s s u e , t h e Chinese Delegation f e l t t h a t t h e a p p l i c a t i o n of t h e e x i s t i n g procedure and p r o v i s i o n s should b e c o n s i s t e n t w i t h t h e form of t h e instrument.
2. The D e l e g a t e of Czechoslovakia, n o t i n g t h a t h i e S t a t e had always been bound by t h e Tokyo, The Hague and Montreal Convent i o n s , welcomed t h e expansion of t h e l e g a l s y s t e m through t h e development of t h e new instrument and advocated t h a t i t b e r a p i d l y e n t e r e d i n t o f o r c e and c o n s i s t e n t l y observed by a l l S t a t e s . The Czechoslovak Delegation recognized t h e d r a f t as a well-balanced instrument and expressed i t s i n t e n t i o n t o support t h o s e p r o p o s a l s t h a t would r e t a i n , t o t h e g r e a t e s t e x t e n t , t h e p r i n c i p l e s and p r o v i s i o n s of t h e t e x t a s adopted by t h e Legal Committee. The Delegation of Czechoslovakia proposed t h a t o f f i c i a l documents of t h e Conference omit what i t considered t o b e unfounded a c c u s a t i o n s a g a i n s t t h e Democratic Peoples Republic of Korea and i t s a g e n c i e s , so t h a t t h e Conference could b e seen s o l e l y as a t r u e s t r u g g l e t o e n s u r e t h e i n c r e a s e d confidence of t h e peoples of t h e world i n t h e s a f e t y of a i r t r a n s p o r t .
The D e l e g a t e of Egypt recognized t h e a d v e r s e e f f e c t s of t e r r o r i s m on i n t e r n a t i o n a l a c t i v i t i e s , e s p e c i a l l y c i v i l a v i a t i o n and, quoting t h e Preamble t o t h e Convention on I n t e r n a t i o n a l C i v i l A v i a t i o n , l i s t e d t h e many I C A 0 bodies concerned with t h e development of s e c u r i t y programmes i n whose meetings Egypt had a c t i v e l y p a r t i c i p a t e d . Egypt supported t h e s p e c i f i c a t i o n s of Annex 17 and
3.
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a p p l i e d t h e procedures of t h e ICA0 S e c u r i t y Manual, having e s t a b l i s h e d s e c u r i t y committees i n some major Egyptian a i r p o r t s t o t h a t e f f e c t . Egypts Supreme A n t i - t e r r o r i s m Commission, l e g i s l a t u r e , c i v i l a v i a t i o n l a w and p e n a l l a w a l l served on v a r i o u s l e v e l s t o r e p r e s s , examine o r punish a c t s of unlawful interference against c i v i l aviation. I n a d d i t i o n , Egypt w a s a p a r t y t o t h e t h r e e i n t e r n a t i o n a l s e c u r i t y Conventions. The Egyptian D e l e g a t i o n welcomed t h e new P r o t o c o l as a f u r t h e r s t e p i n t h e s t r e n g t h e n i n g of t h e above Conventions, and expressed i t s i n t e n t i o n t o r a t i f y t h e P r o t o c o l a t t h e e a r l i e s t o p p o r t u n i t y .
4. The D e l e g a t e of Greece expressed h i s b e l i e f t h a t t h e s u b s t a n c e of t h e new P r o t o c o l formed an e s s e n t i a l supplement t o t h e Montreal Convention and would f i l l a need noted by Greece a t t h e A i r Law Conference h e l d i n Rome i n 1973. Considering t h a t t h e l e g a l system e s t a b l i s h e d by t h e Tokyo, The Hague and Montreal Conventions had l e f t a gap a s r e g a r d s a i r p o r t s , t h e Greek Delegation was of t h e o p i n i o n t h a t t h e most a p p r o p r i a t e form f o r t h e new instrument was t h a t of a P r o t o c o l a d d i t i o n a l o r supplementary t o t h e Montreal Convention. The Greek D e l e g a t i o n , w h i l e s a t i s f i e d w i t h t h e t e x t of t h e d r a f t P r o t o c o l , b e l i e v e d t h a t it could be improved t o some e x t e n t , b u t added t h a t t h e g o a l was t o develop n o t a p e r f e c t instrument b u t one t h a t could be r e a d i l y accepted by and u s e f u l t o t h e i n t e r n a t i o n a l community.
5. The D e l e g a t e of I n d o n e s i a d e c l a r e d h i s s u p p o r t f o r t h e e a r l y a d o p t i o n of an instrument f o r t h e s u p p r e s s i o n of unlawful a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n and a f f i r m e d t h a t Indonesia had a g r e a t i n t e r e s t i n a v i a t i o n s e c u r i t y due t o i t s l o c a t i o n between two c o n t i n e n t s and The because of i t s many a i r p o r t s open t o a c c e s s from neighbouring c o u n t r i e s . Indonesian D e l e g a t i o n expressed i t s p r e f e r e n c e t o have t h e new i n s t r u m e n t t a k e t h e form of a P r o t o c o l a d d i t i o n a l t o t h e Montreal Convention and s t a t e d t h a t i t s a d o p t i o n would pose no d i f f i c u l t i e s t o them s i n c e t h e s u b s t a n c e of t h e proposed amendment had been r e f l e c t e d i n t h e Indonesian p e n a l code s i n c e r a t i f i c a t i o n of t h e Montreal Convention.
6. The D e l e g a t e of A u s t r i a p r a i s e d t h e p r e p a r a t o r y work l e a d i n g t o t h e d r a f t Protocol as another s t e p i n t h e f i g h t a g a i n s t i n t e r n a t i o n a l terrorism, which h e noted was e v e r - i n c r e a s i n g i n i n t e n s i t y . The A u s t r i a n Delegation condemned t h e a t t a c k on Korean A i r F l i g h t No. 858 of 29 November 1987 and urged While t h a t i t be f u l l y i n v e s t i g a t e d and t h e o f f e n d e r s brought t o j u s t i c e . r e c o g n i z i n g t h a t t e r r o r i s m could not be e r a d i c a t e d by l e g a l i n s t r u m e n t s a l o n e and t h a t gaps s t i l l e x i s t e d i n t h e l e g a l s y s t e m , t h e D e l e g a t e of A u s t r i a w a s of t h e o p i n i o n t h a t laws were important and e f f e c t i v e i n t h e p r e v e n t i o n of t e r r o r i s m and t h e r e f o r e h i s D e l e g a t i o n supported t h e work of t h e Conference. The A u s t r i a n D e l e g a t i o n b e l i e v e d t h a t a P r o t o c o l would be t h e b e s t form f o r t h e new instrument and t h a t t h e Montreal Convention w a s t h e b e s t b a s i s upon which t o expand. The D e l e g a t e of A u s t r i a r e a f f i r m e d h i s Delegations b e l i e f t h a t t h e e x i s t i n g d e f i n i t i o n of an a i r p o r t was adequate f o r t h e purposes of t h i s i n s t r u m e n t . P o i n t i n g t o paragraph 1 b i s a s t h e l i k e l y c o r e of t h e i n s t r u m e n t , he expressed t h e view t h a t n o t c r i m i n a l a c t s should be d e c l a r e d i n t e r n a t i o n a l c r i m e s , and t h a t whatever a c t s were included i n t h e P r o t o c o l should be q u a l i f i e d i n o r d e r t o s p e c i f y why t h e y were c o n s i d e r e d i n t e r n a t i o n a l crimes. S i m i l a r l y , n o t i n g t h a t a s i g n i f i c a n t problem f a c e d by t h e Legal
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Committee was t h e q u e s t i o n of how t o d e f i n e t h e a c t s of v i o l e n c e and bis, d e s t r u c t i o n t o b e covered by paragraph 1 - t h e A u s t r i a n D e l e g a t i o n b e l i e v e d t h a t t h e p r e s e n t wording would pose problems of i n t e r p r e t a t i o n i n p r a c t i c a l application. The A u s t r i a n Delegation viewed t h r e a t s t o commit c e r t a i n a c t s of v i o l e n c e as s e r i o u s o f f e n c e s i n themselves and urged t h a t t h e concept of t h r e a t be included i n t h e i n s t r u m e n t . The Delegate of A u s t r i a supported t h e view t h a t f a c i l i t i e s o u t s i d e t h e parameters of an a i r p o r t b u t e s s e n t i a l t o i t s o p e r a t i o n be p r o t e c t e d i n t h e same way a s t h e a i r p o r t i t s e l f . 7. The Delegate of B u l g a r i a viewed t h e instrument a s a t o o l f o r e n l a r g i n g t h e l e g a l b a s i s f o r co-operation a g a i n s t unlawful a c t s a g a i n s t i n t e r n a t i o n a l c i v i l a v i a t i o n and d e c l a r e d h i s Delegations condemnation of t h e u s e of f o r c e a g a i n s t innocent people, t h e i r p r o p e r t y , and sometimes t h e i r p o l i t i c a l o r moral v a l u e s . I n l i g h t of t h i s , t h e B u l g a r i a n Delegation opposed t h e u s e of t h e Conference f o r t h e achievement of p o l i t i c a l g o a l s s i n c e t h i s would d i s t r a c t Delegates a t t e n t i o n from t h e i r immediate t a s k . Furthermore, t h e Bulgarian Delegation b e l i e v e d t h a t a g e n e r a l d e b a t e was n o t n e c e s s a r y and t h a t d e l i b e r a t i o n of t h e d r a f t should commence as soon a s p o s s i b l e .
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8. The Delegate of t h e Ukrainian S o v i e t S o c i a l i s t Republic, r e c o g n i z i n g t h e importance of t h e development and adoption of a document t o combat a c t s of v i o l e n c e a g a i n s t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n , considered t h e d r a f t a satisfactory basis f o r discussion. The Ukrainian S o v i e t S o c i a l i s t Republic had r a t i f i e d a number of i n t e r n a t i o n a l agreements i n c l u d i n g The Hague and Montreal Conventions and, more r e c e n t l y , t h e Tokyo Convention, i n a d d i t i o n t o being a member of t h e United Nations Committee on I n t e r n a t i o n a l Terrorism. The Delegation of t h e Ukrainian S o v i e t S o c i a l i s t Republic shared t h e r e g r e t of o t h e r Delegations f o r t h e r e c e n t v i c t i m s of t e r r o r i s m , b u t considered i t i n a d v i s a b l e t o become involved, a t t h e p r e s e n t Conference, w i t h a l l e g a t i o n s i t f e l t had been made f o r p o l i t i c a l purposes. The Delegate of t h e Ukrainian S o v i e t S o c i a l i s t Republic a l s o i n d i c a t e d h i s Delegations d i s t r u s t i n t h e i n v e s t i g a t i o n of t h e a c t of t e r r o r i s m i n q u e s t i o n . I n conclusion, he emphasized h i s Delegations r e a d i n e s s t o p a r t i c i p a t e a c t i v e l y i n t h e s u c c e s s of t h e Conference.
9. The Delegate of Yugoslavia observed t h e importance of s a f e t y i n a i r s e r v i c e s and s t a t e d t h a t e f f o r t s were being taken by S t a t e s throughout t h e world t o s u p p r e s s unlawful i n t e r f e r e n c e . Yugoslavia, i n endeavouring t o f u l f i l l i t s o b l i g a t i o n s i n t h i s r e g a r d , had r a t i f i e d a l l Conventions on unlawful i n t e r f e r e n c e w i t h i n t e r n a t i o n a l c i v i l a v i a t i o n and s t r i c t l y followed ICAO s e c u r i t y p o l i c y as s e t o u t i n Amex 17. I n addition t o outlining the comprehensive Yugoslav domestic programme i n a v i a t i o n s e c u r i t y , t h e Delegate of Yugoslavia explained t h a t Yugoslavia Co-operated w i t h many c o u n t r i e s f o r t h e development of b o t h b i l a t e r a l and m u l t i l a t e r a l agreements, and t h a t having promoted a high l e v e l of s a f e t y i n c i v i l a v i a t i o n , a i r t r a f f i c i n Yugoslavia had been o p e r a t i n g without d i s t u r b a n c e . Yugoslavia, a t t h e 26th ICAO Assembly, had voted i n favour of R e s o l u t i o n A26-4, and p r e s e n t l y supported t h e d r a f t t e x t of t h e P r o t o c o l t o t h e Montreal Convention.
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10. The D e l e g a t e of t h e F e d e r a l Republic of Germany r e a f f i r m e d h i s p o s i t i o n a g a i n s t a l l forms of t e r r o r i s m and regarded t h e d r a f t as an appropriate basis f o r discussion. O b e h a l f of h i s D e l e g a t i o n and as n d e p o s i t a r y of t h e o p i n i o n s of 11 Member S t a t e s of t h e European Community, t h e D e l e g a t e of t h e F e d e r a l Republic of Germany expressed deep r e g r e t f o r t h e l i v e s l o s t i n t h e t r a g e d y of Korean A i r F l i g h t No. 858 and condemned t h i s a c t of terrorism against c i v i l aviation.
11. The D e l e g a t e of Ghana expressed h i s a p p r e c i a t i o n f o r and a d m i r a t i o n of Canada?s i n i t i a t i v e i n p r o v i d i n g f i n a n c i a l and t e c h n i c a l a s s i s t a n c e t o some Caribbean S t a t e s . While f i n d i n g t h e P r o t o c o l g e n e r a l l y a c c e p t a b l e , t h e D e l e g a t i o n of Ghana b e l i e v e d t h a t c o n s i d e r a t i o n should a l s o b e g i v e n t o providing a s s i s t a n c e t o developing S t a t e s , p a r t i c u l a r l y t h o s e i n A f r i c a , t o improve a i r p o r t s e c u r i t y . The D e l e g a t e o f Ghana p o i n t e d o u t t h a t w h i l e A f r i c a n a i r p o r t s and a i r s p a c e s had been s a f e i n t h e p a s t , t h e r e was no g u a r a n t e e t h a t H e suggested t h a t i f d i s c u s s i o n of t h i s i s s u e were n o t t h e y would remain s o . considered a p p r o p r i a t e a t t h e p r e s e n t Conference t h a t perhaps i t could b e t a k e n The D e l e g a t i o n of Ghana shared t h e concern of t h e up a t a n o t h e r forum. i n t e r n a t i o n a l community o v e r t h e u r g e n t need t o conclude l e g i s l a t i o n t o f a c i l i t a t e the fight against terrorism.
12. The D e l e g a t e of Costa Rica supported t h e d r a f t i n p r i n c i p l e because of h i s A d m i n i s t r a t i o n ? s concern o v e r t e r r o r i s t a c t s , and s t r e s s e d t h e The Costa importance of t h e implementation of t h e document being prepared. Rican Delegation r e i t e r a t e d i t s support f o r every e f f o r t made t o combat a c t s of violence. 13. The D e l e g a t e of t h e I s l a m i c Republic of I r a n a s s u r e d t h e Conference of h i s D e l e g a t i o n ? s p a s t and continued s u p p o r t of ICAO?s e f f o r t s t o e n s u r e safety i n international c i v i l aviation. I n s p i t e of I C A O ? s e f f o r t s , however, a c t s of v i o l e n c e s t i l l occurred and t h e Islamic Republic of I r a n had been t h e v i c t i m of many such a c t s . I n l i g h t of t h i s , t h e I r a n i a n D e l e g a t i o n expressed i t s a p p r e c i a t i o n f o r t h e work of t h e I C A 0 Council and hoped t h a t Council I t was proposed t h a t t h e scope r e s o l u t i o n s would be more a c t i v e l y implemented. of t h e new instrument cover a l l a r e a s of c i v i l a v i a t i o n n o t a l r e a d y d e a l t w i t h by e x i s t i n g i n s t r u m e n t s i n o r d e r t o p r o t e c t , s p e c i f i c a l l y , t h e s p e c i a l v e h i c l e s t h a t c a r r y passengers t o and from t h e a i r p o r t ; a i r l i n e o f f i c e s ; and c i v i l a v i a t i o n f a c i l i t i e s l o c a t e d o u t s i d e a i r p o r t a r e a s . The D e l e g a t e of t h e I s l a m i c Republic of I r a n emphasized t h a t s u c c e s s i n t h e f i g h t a g a i n s t t e r r o r i s m r e q u i r e d t h a t i n s t r u m e n t s be backed by a c t i o n s . 14. The D e l e g a t e of t h e Kingdom of t h e N e t h e r l a n d s , d e c l a r i n g h i s government?s support of and p a r t i c i p a t i o n i n t h e p r e p a r a t o r y work f o r t h i s i n s t r u m e n t , s t a t e d t h a t t h e t e s t of t h e i n s t r u m e n t ? s ? s u c c e s s would b e i n how q u i c k l y i t could b e r a t i f i e d and made o p e r a t i v e by t h e l a r g e s t number of States. H e p o i n t e d o u t t h a t a i r p o r t s ? r o l e as f o c a l p o i n t s of i n t e r n a t i o n a l a i r t r a n s p o r t a t i o n j u s t i f i e d t h e i n t r o d u c t i o n of a s p e c i a l regime f o r c e r t a i n c r i m i n a l a c t s a t a i r p o r t s t h a t were i n a l l o t h e r a s p e c t s i n d i s t i n g u i s h a b l e from t h o s e c r i m i n a l a c t s committed o u t s i d e t h e a i r p o r t and a l r e a d y covered by domestic law. T h i s implied t h a t t h e scope of t h e P r o t o c o l b e c l e a r l y
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r e s t r i c t e d t o t h e p r o t e c t i o n of t h i s f u n c t i o n of i n t e r n a t i o n a l a i r p o r t s . The Delegate of t h e Kingdom of t h e Netherlands expressed h i s Delegations i n t e n t i o n t o c o n t r i b u t e t o t h e Conference i n a p o s i t i v e way. 15. The D e l e g a t e of E t h i o p i a recognized t h e r o l e of s e c u r i t y i n t h e success of c i v i l a v i a t i o n and t h e a i r t r a n s p o r t i n d u s t r y and t h e s i g n i f i c a n t i n f l u e n c e t h e s e had on t h e h e a l t h of t h e economy. H e s t r e s s e d t h a t t h e t a s k of combatting t e r r o r i s m must b e c a r r i e d o u t w i t h a deep s e n s e of r e s p o n s i b i l i t y f o r l i f e and p r o p e r t y , and t h a t i t was o n l y through t h e r i g o r o u s a p p l i c a t i o n of laws, t h e formation of a common f r o n t by t h e i n t e r n a t i o n a l community and t h e a c t i o n of p u b l i c p r e s s u r e a g a i n s t t e r r o r i s m t h a t t h e problem would e v e n t u a l l y be eliminated, The D e l e g a t e of E t h i o p i a explained t h a t many a i r t r a v e l l e r s v i s i t e d E t h i o p i a because i t s a i r p o r t s were c o n v e n i e n t l y l o c a t e d , i t s c a p i t a l c i t y w a s t h e seat of s e v e r a l i n t e r n a t i o n a l o r g a n i z a t i o n s , and because it contained a wealth of h i s t o r y and scenery. The importance of a v i a t i o n t o t h e economy and i n t e r n a t i o n a l r e p u t a t i o n of E t h i o p i a had made t h i s S t a t e s e n s i t i v e and a t t e n t i v e t o a i r p o r t s e c u r i t y m a t t e r s . The Delegate of E t h i o p i a viewed t h e passenger a s t h e most important product i n a i r t r a n s p o r t and hoped t h a t governments and i n t e r n a t i o n a l o r g a n i z a t i o n s would c o n t i n u e t o o f f e r t e c h n i c a l a s s i s t a n c e so t h a t passengers could t r a v e l i n maximum s a f e t y and comfort. The Delegate of E t h i o p i a concluded w i t h a n o t e of t r i b u t e t o t h e p i o n e e r s of c i v i l a v i a t i o n t o whom t h e Conference owed t h e o p p o r t u n i t y f o r t h e i r work t o f l o u r i s h f r e e from t e r r o r i s m . 16 , The D e l e g a t e of Colombia expressed h e r D e l e g a t i o n s d e s i r e t o p a r t i c i p a t e a c t i v e l y i n t h e amendment of t h e d r a f t t e x t which i t considered well-developed and meeting t h e i n t e r n a t i o n a l concern t o s u p p r e s s a c t s of violence against c i v i l aviation. The Colombian D e l e g a t i o n supported t h e d e c i s i o n t h a t t h e instrument t a k e t h e form of a P r o t o c o l supplementary t o t h e Montreal Convention, b e l i e v e d t h a t no l i s t of t h e means used should be included under o f f e n c e s because t h e Montreal Convention contained no such l i s t , and I n reviewing t h e hoped t o s e e t h e concept of t h r e a t included as an o f f e n c e . Montreal Convention, t h e Colombian Delegation found A r t i c l e 10 t o o vague and wished t o p r e s e n t t o D e l e g a t e s t h e i d e a of amending it t o make i t s meaning more specific
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17. The Observer f o r t h e United Nations expressed h i s a p p r e c i a t i o n f o r t h e i n v i t a t i o n extended t o t h e United Nations t o b e r e p r e s e n t e d a t t h i s The Observer f o r Conference and i n d i c a t e h i s confidence i n i t s l e a d e r s h i p . t h e United Nations t h e n addressed t h e problem of t e r r o r i s m which had a t t r a c t e d d t h e a t t e n t i o n of t h e United Nations i n 1972, when an A Hoc Committee on i n t e r n a t i o n a l t e r r o r i s m had been e s t a b l i s h e d , l a t e r producing recommendations r e l a t i n g t o p r a c t i c a l measures a g a i n s t t e r r o r i s m t h a t were endorsed by t h e General Assembly. Among subsequent r e s o l u t i o n s by t h e General Assembly on t e r r o r i s m w a s R e s o l u t i o n 40/61 t h a t condemned a s c r i m i n a l , a c t s , methods and p r a c t i c e s of t e r r o r i s m whether and by whomever committed. The Assembly had a l s o c a l l e d upon S t a t e s t o f u l f i l l t h e i r o b l i g a t i o n s under i n t e r n a t i o n a l law i n connexion w i t h i n t e r n a t i o n a l t e r r o r i s m and, i n t h i s r e s o l u t i o n , a l s o encouraged I C A 0 t o c o n t i n u e i t s e f f o r t s aimed a t promoting acceptance of and compliance w i t h i n t e r n a t i o n a l a i r s e c u r i t y Conventions. The problem of t e r r o r i s m had a l s o
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been addressed by t h e S e c u r i t y Council which, i n one r e s o l u t i o n , condemned t h o s e t e r r o r i s t a c t s a t Rome and Vienna a i r p o r t s and c a l l e d upon a l l concerned t o r e f r a i n from t a k i n g any a c t i o n i n c o n s i s t e n t w i t h t h e o b l i g a t i o n s under t h e C h a r t e r of t h e United Nations and o t h e r r e l e v a n t r u l e s of i n t e r n a t i o n a l l a w . The Observer f o r t h e United Nations went on t o e x p l a i n t h a t t h e l a t e s t a c t i o n by t h e United Nations on t h e problem of t e r r o r i s m had been considered under two a s p e c t s , t h e f i r s t i n 1987 w i t h R e s o l u t i o n 421159 which urged S t a t e s t o undertake f i v e s p e c i f i c measures designed t o encourage co-operation between S t a t e s f o r t h e p r e v e n t i o n of t e r r o r i s m and f o r t h e apprehension, p r o s e c u t i o n o r e x t r a d i t i o n of p e r p e t r a t o r s of such a c t s . I n t h a t r e s o l u t i o n , t h e General Assembly a l s o welcomed I C A O s e f f o r t s i n t h e promotion of i t s i n t e r n a t i o n a l a i r s e c u r i t y Conventions and i n i t s p r e s e n t work. The second a s p e c t , a d d r e s s i n g t h e q u e s t i o n o f convening an i n t e r n a t i o n a l conference f o r t h e purpose of d e f i n i n g t e r r o r i s m and d i f f e r e n t i a t i n g i t from t h e s t r u g g l e of peoples f o r n a t i o n a l l i b e r a t i o n , was p r e s e n t e d t o S t a t e s and t h e i r views on how b e s t t o approach t h e s u b j e c t would be r e p o r t e d by t h e Secretary-General a t t h e 4 4 t h S e s s i o n of t h e General Assembly. I n a d d i t i o n t o t h e r e s o l u t i o n s mentioned above, t h e United Nations had produced some Conventions towards e l i m i n a t i n g t e r r o r i s m , such as t h e 1973 Convention on t h e P r e v e n t i o n and Punishment of C r i m e s Against I n t e r n a t i o n a l l y P r o t e c t e d Persons I n c l u d i n g Diplomatic Agents, and t h e 1979 I n t e r n a t i o n a l Convention a g a i n s t t h e Taking of Hostages, which s i n g l e d o u t t h e t a k i n g of h o s t a g e s as i n a d m i s s i b l e and unlawful under any circumstances and f o r whatever purpose. T h i s Convention w a s designed t o f i l l t h e gap i n i n t e r n a t i o n a l l a w i n c a s e s of hostage-taking where t h e r e were no a p p l i c a b l e t r e a t y o b l i g a t i o n s f o r t h e p a r t i e s concerned t o d e a l w i t h t h e unlawful a c t . The Observer f o r t h e United Nations concluded by saying t h a t t h e United Nations welcomed and applauded ICAOs e f f o r t s t o extend t o a i r p o r t s t h e a n t i - t e r r o r i s t measures a f f o r d e d t o a i r c r a f t by t h e Tokyo, The Hague and Montreal Convent i o n s . (The meeting adjourned a t 1230 hours 1
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DRAFT F o u r t h P l e n a r y Meeting
FOURTH PLENARY MEETING (Wednesday, 10 February 1988, a t 1430 h o u r s )
AGENDA ITEM 5: GENERAL STATEMENTS
1. Upon resuming t h e g e n e r a l d e b a t e , t h e D e l e g a t e of Ecuador d e c l a r e d t h a t l i v i n g i n an i n c r e a s i n g l y v i o l e n t w o r l d c a u s e d S t a t e s t o s e e k i n t e r n a t i o n a l c o - o p e r a t i o n t o n e u t r a l i z e v i o l e n c e through l a w s . He s t a t e d t h a t t h e i n t e r n a t i o n a l community should n o t b e speaking i n a b s t r a c t i o n s when i t s problems were c o n c r e t e , b u t t h a t i t s a c t i o n s should speak f o r themselves. He d e c l a r e d t h a t faced w i t h an interdependence of problems, t h e Conference must respond by c r e a t i n g i n t e r d e p e n d e n t s o l u t i o n s , and t h a t Ecuador valued a l l a c t i o n s t a k e n by t h e i n t e r n a t i o n a l community t o s u p p r e s s t e r r o r i s m . The Delegate of Ecuador commented t h a t t h e world was n o t s o l a r g e t h a t it could n o t b e c o n t r o l l e d b u t n o t s o s m a l l t h a t problems should overcome i t , and t h a t both l t h e problems and t h e s o l u t i o n s could be found w i t h i n each person. Ee explained t h a t e t h i c a l s t a n d a r d s should form laws and t h a t t h e s e laws should become States obligations. The a i m should be f o r p r a c t i c a l laws t o d i s c o u r a g e and punish crime a t i n t e r n a t i o n a l c i v i l a i r p o r t s and t h e r e s p o n s i b i l i t y was two-fold s i n c e it meant n o t o n l y t a k i n g c a r e of o u r own world b u t a l s o t h a t of t h e f u t u r e . The p r e s e n t g o a l should even i n c l u d e f i g h t i n g t h e moral and s o c i a l t e r r o r i s m of i l l e g a l drug t r a f f i c k i n g by a i r . The Ecuadorian Delegation b e l i e v e d t h a t t h e P r o t o c o l should be an instrument a d d i t i o n a l t o t h e Montreal Convention and concluded by pledging i t s e f f o r t s towards i t s e s t a b l i s h m e n t .
2. The Observer f o r t h e A i r p o r t A s s o c i a t i o n s Co-ordinating Council, n o t i n g t h a t t h e AACC r e p r e s e n t e d some 400 i n t e r n a t i o n a l a i r p o r t s , a i r p o r t a u t h o r i t i e s and n a t i o n a l a i r p o r t a s s o c i a t i o n s i n o v e r 100 S t a t e s , r e f e r r e d t o t h e AACCs VIA Doc No. 22 and d e c l a r e d h i s Councils support f o r ICAOs g u i d i n g r o l e of urging S t a t e s t o assume t h e i r r e s p o n s i b i l i t i e s t o p r o t e c t c i v i l a v i a t i o n a g a i n s t a c t s of t e r r o r i s m . The AACC r e i t e r a t e d i t s support a l s o f o r t h e promulgation of t h e d r a f t instrument t o supplement t h e Montreal Convention. The Observer r e p e a t e d t h e p o i n t made by t h e AACC a t t h e 26th S e s s i o n of t h e Legal Committee t h a t t h e t h r e e p i l l a r s of any i n t e r n a t i o n a l c o - o r d i n a t e d a c t i o n a g a i n s t t e r r o r i s m were p r e v e n t i o n , legislation and response, where p r e v e n t i o n meant t h e t r a i n i n g of s e c u r i t y p e r s o n n e l and t h e a v a i l a b i l i t y of d e t e c t i o n equipment; e f f e c t i v e l e g i s l a t i o n meant s t r i c t adherence t o and implementation of a l l I C A 0 s e c u r i t y Conventions by a l l S t a t e s and t h e i n c l u s i o n of t h e concepts embodied t h e r e i n i n a l l m u l t i l a t e r a l and
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b i l a t e r a l a i r s e r v i c e agreements; and e f f e c t i v e r e s p o n s e r e q u i r e d S t a t e s t o Co-operate c l o s e l y w i t h one a n o t h e r t o s u p p r e s s t e r r o r i s m i n l i n e w i t h ICAO R e s o l u t i o n A26-4. The Observer f o r t h e AACC r e a f f i r m e d h i s C o u n c i l ' s commitment t o ICAO, l i s t i n g t h o s e b o d i e s i n whose meetings it had p a r t i c i p a t e d , such a s t h e ICAO Committee on Unlawful I n t e r f e r e n c e , t h e A v i a t i o n S e c u r i t y Panel and o t h e r I C A O meetings d e a l i n g w i t h s e c u r i t y m a t t e r s , and expressed h i s p l e a s u r e a t a t t e n d i n g t h e p r e s e n t Conference.
3. Many D e l e g a t i o n s began t h e i r s t a t e m e n t s by c o n g r a t u l a t i n g t h e P r e s i d e n t on h i s e l e c t i o n ' t o t h e c h a i r , and h e , i n t u r n , thanked them f o r t h e i r s t a t e m e n t s , e x p r e s s i n g h i s g r a t i t u d e f o r t h e i r compliments and f o r t h e i r support f o r t h e Conference.
4. The g e n e r a l d e b a t e having been concluded, t h e P r e s i d e n t o f f e r e d h i s impressions of t h e s t a t e m e n t s . He observed t h a t a l l Delegations r e i t e r a t e d t h e i r unequivocable condemnation of a l l forms of t e r r o r i s m w i t h p a r t i c u l a r r e f e r e n c e t o t h e s a f e t y of c i v i l a v i a t i o n i n g e n e r a l and s e c u r i t y a t i n t e r n a t i o n a l a i r p o r t s i n p a r t i c u l a r ; a l l s p e a k e r s expressed f u l l s u p p o r t f o r t h e e x i s t i n g Conventions on a v i a t i o n s e c u r i t y and on r e l a t e d i n s t r u m e n t s ; and i t was g e n e r a l l y f e l t t h a t t h o s e Conventions needed t o be supplemented by a d d i t i o n a l p r o v i s i o n s r e l a t i n g t o t h e s e c u r i t y of a i r p o r t s s e r v i n g international c i v i l aviation. The P r e s i d e n t noted t h e a p p r e c i a t i o n expressed f o r t h e work done by t h e Rapporteur, t h e s p e c i a l Sub-committee and t h e Legal Committee. H e b e l i e v e d t h a t it was g e n e r a l l y agreed t h a t t h e work of t h e 26th S e s s i o n of t h e Legal Committee formed an e x c e l l e n t b a s i s f o r c o n s i d e r a t i o n and t h a t , o v e r - a l l , t h e d r a f t would be a c c e p t a b l e w i t h some minor a d j u s t m e n t s . It seemed widely understood t h a t t h e instrument should t a k e t h e form of a P r o t o c o l supplementary t o t h e Montreal Convention. The P r e s i d e n t noted t h a t a number of o b s e r v a t i o n s of s u b s t a n c e had been made and t h a t t h e s e would be d i s c u s s e d shortly. The P l e n a r y w a s t h e n transformed, a t 1500 h o u r s , i n t o t h e f i r s t meeting of t h e Commission of t h e Whole which would b e open t o p a r t i c i p a t i o n by observer delegations.
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DRAFT F i r s t Meeting Commission of t h e Whole
FIRST MEETING OF THE COMMISSION O THE WHOLE F (Wednesday, 10 February 1988, a t 1500 h o u r s )
Chairman: M r . P . K i r s c h
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AGENDA ITEM 7 : ORGANIZATION O WORK F
1. The Chairman began t h e meeting by l i s t i n g t h e following f o u r i s s u e s t h a t had been r e f e r r e d t o t h e Conference by t h e Legal Committee f o r f u r t h e r d e l i b e r a t i o n ( t h e paragraph r e f e r e n c e s following each i s s u e r e f e r t o t h e Report of t h e 26th Session of t h e Legal Committee (Doc 9502)):
4.63); ( 2 ) p r e v e n t i v e measures (4.64 - 4.65); ( 3 ) t h e p a r t i c i p a t i o n i n t h e P r o t o c o l of S t a t e s n o t p a r t i e s t o t h e Montreal Convention (4.66 - 4.67); and ( 4 ) t h e i m p l i c a t i o n s of t h e i n c l u s i o n i n t h e P r o t o c o l of a i r c r a f t n o t i n s e r v i c e a t t h e a i r p o r t (4.71). The Chairman explained t h a t while Delegates should g i v e p r i o r i t y t o t h e s e i s s u e s , t h e d i s c u s s i o n w a s n o t l i m i t e d t o them, and t h a t o t h e r i s s u e s of importance had been r a i s e d such as t h e t e x t of paragraph 1 - t h e q u e s t i o n of bis, r e f e r r i n g paragraph 1 - t o t h e D r a f t i n g Committee o r any l i m i t e d s u b s i d i a r y bis body i n o r d e r t o s i m p l i f y i t s d i s c u s s i o n , and t h e p o s s i b i l i t y of t h e f i n a l c l a u s e s of t h e P r o t o c o l being addressed by t h e D r a f t i n g Committee. The Chairman suggested t h a t t h e establishment of t h e D r a f t i n g and o t h e r Committees b e d e f e r r e d t o a l a t e r s t a g e i n o r d e r t o g i v e t h e Commission of t h e Whole some time t o develop i t s views on t h e i s s u e s a t hand. A s t h i s procedure seemed a c c e p t a b l e t o t h e Commission of t h e Whole, Delegates were i n v i t e d t o t a k e t h e floor.
AGENDA ITEM 9: CONSIDERATION OF THE DRAFT INSTRUMENT
2. The Delegate of T u n i s i a , b e l i e v i n g t h a t many Delegates d i d n o t have w i t h them t h e i r copy of t h e Report of t h e Legal Committee, questioned whether i t would n o t be a p p r o p r i a t e , i n t h e f u t u r e , t o i n c l u d e i n t h e Order of Business a l l documents n e c e s s a r y f o r t h e Conference. I n response, t h e Executive S e c r e t a r y , D r . M. Milde agreed t h a t t h e Order of Business f o r each meeting should l i s t r e l e v a n t documents, b u t explained t h a t t h e Order of Business f o r t h e f i r s t and second P l e n a r y Meetings had contained a f o o t n o t e t o t h e e f f e c t t h a t Orders of Business f o r subsequent meetings would normally n o t be i s s u e d
(1) t h e a r e a of j u r i s d i c t i o n and e x t r a d i t i o n (4.58
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( f o r r e a s o n s of economy) and t h a t s i n c e no o b j e c t i o n s had been r a i s e d when t h e agenda was adopted, it had been understood t h a t t h i s m e t w i t h D e l e g a t e s D r . M . Milde a l s o p o i n t e d o u t t h a t subsequent Orders of Business approval. would have included o n l y one i t e m , t h a t i s , Agenda Item 9: C o n s i d e r a t i o n of t h e d r a f t instrument. With r e s p e c t t o t h e Report of t h e Legal Committee, D r . M. Milde explained that t h e S e c r e t a r y General had s e n t c o p i e s t o C o n t r a c t i n g S t a t e s on 10 June 1987, emphasizing t h a t i t would b e t h e b a s i c document f o r t h i s Conference. While g e n e r a l d i s t r i b u t i o n of t h e document would n o t b e made a g a i n , D r . M . Milde a s s u r e d Delegates t h a t c o p i e s would b e provided t o D e l e g a t i o n s upon r e q u e s t .
_ 3 .. R e f e r r i n g t o t h e Drocedure o u t l i n e d bv t h e Chairman. t h e D e l e n a t e o -f Argentina suggested t h a t d i s c u s s i o n of t h e f o u r i s s u e s mentioned e a r l i e r b e d e f e r r e d u n t i l t h e f o l l o w i n - day i n o r d e r t h a t a l l would b e a b l e t o c o n s u l t t h e g r e l e v a n t documents. He suggested t h a t t h e c u r r e n t d i s c u s s i o n d e a l w i t h g e n e r a l i s s u e s p e r t a i n i n g t o t h e P r o t o c o l . The Chairman had no o b j e c t i o n t o t h i s s i n c e D e l e g a t i o n s had a l r e a d y been i n v i t e d t o a d d r e s s o t h e r i s s u e s . Not wishing t o l i m i t t h e p r e s e n t meeting t o one o r a n o t h e r i s s u e , however, t h e Chairman r e p e a t e d h i s i n v i t a t i o n t o Delegates t o a d d r e s s t h e f o u r i s s u e s l i s t e d o r , as mentioned by t h e D e l e g a t e of A r g e n t i n a , t o g e n e r a l q u e s t i o n s .
v
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S e v e r a l D e l e g a t i o n s t h e n p r e s e n t e d t h e i r main d i f f e r e n c e s o r It was s t r o n g l y f e l t , s u g g e s t i o n s f o r improvement t o t h e d r a f t P r o t o c o l . however, t h a t t h e d r a f t c r e a t e d by t h e Legal Committee w a s a l r e a d y an e x c e l l e n t document and formed a sound b a s i s f o r d i s c u s s i o n .
4.
5. I n r e f e r e n c e t o t h e f i r s t of t h e f o u r i s s u e s , namely t h e a r e a of j u r i s d i c t i o n and e x t r a d i t i o n , t h e Delegate of t h e United Kingdom was c o n t e n t The D e l e g a t e t h a t t h e system s e t up by t h e Montreal Convention should apply. bis of France f e l t t h a t t h e wording of paragraph 2 - of A r t i c l e 5 introduced new concepts w i t h r e s p e c t t o t h e Montreal Convention i n t h a t i t seemed t o e s t a b l i s h a system which favoured e x t r a d i t i o n t o t h e c o u n t r y i n which t h e crime w a s committed. It was f e l t t h a t t h i s c o n t r a d i c t e d t h e system e s t a b l i s h e d i n t h e Montreal and The Hague Conventions which allowed f o r e x t r a d i t i o n being g r a n t e d t o o t h e r S t a t e s w i t h l e g i t i m a t e reasons f o r r e q u e s t i n g i t . The D e l e g a t e of France t h e n d e s c r i b e d how, i f t h e suggested e x t r a d i t i o n s o l u t i o n were adopted i n t h e P r o t o c o l and i f t h e instrument a l s o included a i r c r a f t n o t i n s e r v i c e , t h i s could c r e a t e t e c h n i c a l i t i e s g i v i n g r i s e t o s i t u a t i o n s i n which a c t s of t e r r o r i s m t h a t were v e r y s i m i l a r i n n a t u r e could r e s u l t i n e x t r a d i t i o n s o l u t i o n s t h a t d i f f e r e d g r e a t l y , depending o n l y on such v a r i a b l e s as whether o r n o t t h e a i r c r a f t had been i n s e r v i c e a t t h e t i m e of a t t a c k o r t h e l e n g t h of t i m e it had been o u t of s e r v i c e . He added t h a t t h i s w a s n o t t h e system t h a t had been r e t a i n e d i n t h e d r a f t instrument f o r t h e upcoming Convention on maritime law t o b e h e l d i n Rome.
R e l a t i n g t o t h e second i s s u e , t h a t of p r e v e n t i v e measures, t h e D e l e g a t e of t h e United Kingdom questioned t h e n e c e s s i t y of i n c l u d i n g s p e c i f i c o b l i g a t i o n s on t h i s s u b j e c t and t h e D e l e g a t e of France suggested t h a t t h e i s s u e be c a r e f u l l y studied.
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On t h e i s s u e of t h e p a r t i c i p a t i o n i n t h e P r o t o c o l of S t a t e s n o t p a r t i e s t o t h e Montreal Convention, t h e D e l e g a t e of t h e United Kingdom f e l t t h a t i n l i g h t of t h e number of S t a t e s which were a l r e a d y p a r t i e s t o t h e Montreal Convention, t h e r e was no need f o r S t a t e s t o b e a b l e t o r a t i f y one without t h e o t h e r . S i m i l a r l y , t h e Delegate of France f e l t t h a t due t o t h e t e c h n i c a l s i m i l a r i t y of t h e two i n s t r u m e n t s , i t would be d i f f i c u l t f o r S t a t e s t o become p a r t i e s t o t h e P r o t o c o l without a l s o r a t i f y i n g t h e Convention.
I n r e f e r e n c e t o t h e f o u r t h i s s u e , t h e i m p l i c a t i o n s of t h e i n c l u s i o n i n t h e P r o t o c o l of a i r c r a f t n o t i n s e r v i c e a t t h e a i r p o r t , t h e D e l e g a t e of t h e United Kingdom would a c c e p t i t s i n c l u s i o n b u t b e l i e v e d it would c a u s e problems ~of i n t e r p r e t a t i o n . The D e l e g a t e of France was n o t i n favour of i t s i n c l u s i o n s i n c e t h e Montreal Convention d i d n o t r e f e r t o a i r c r a f t n o t i n s e r v i c e . bis, S e v e r a l Delegations commented on t h e t e x t of paragraph 1 6. p a r t i c u l a r l y t h a t p h r a s e d e s c r i b i n g t h e means used t o commit an a c t of While t h e Delegate of Argentina favoured t h e omission of a l i s t of violence. such means, t h e D e l e g a t e of Tanzania was concerned t h a t t h e e x i s t i n g l i s t was n o t an e x h a u s t i v e one and suggested t h e a d d i t i o n of a l l o t h e r means. The Delegate of t h e United Kingdom observed t h a t t h e p r e s e n t wording was t h e r e s u l t of much d i s c u s s i o n and a subsequent v o t e on t h e p a r t of t h e Legal Committee and, w h i l e r e l u c t a n t t o reopen d e b a t e on t h e i s s u e , he f e l t t h a t t h e p r e s e n t wording was n o t l i m i t i n g enough. The Delegate of I n d i a wished t o have noted t h a t t h e Legal Committee had considered u s i n g t h e words "bombs and explosives" i n l i s t i n g -means used, b u t had decided t h a t t h e term "device, subs-tance o r weapon" included "bombs and explosives" as w e l l . The D e l e g a t e of Argentina b e l i e v e d t h a t t h e a c t of knowingly communicating f a l s e information which might endanger s a f e t y a t an a i r p o r t should b e included a s an o f f e n c e i n t h e P r o t o c o l , s i n c e a s i m i l a r o f f e n c e , b u t o n l y a p p l i c a b l e t o a i r c r a f t i n f l i g h t , appeared i n t h e Montreal Convention. H e was a l s o concerned t h a t t h e p h r a s e "act of violence" had never been d e f i n e d and, favouring i t s r e t e n t i o n , expressed h i s D e l e g a t i o n ' s d e s i r e t o see it defined
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The D e l e g a t e of t h e United Kingdom r a i s e d two p o i n t s r e g a r d i n g t h e q u a l i f i e r " i f such an a c t endangers o r i s l i k e l y t o endanger s a f e t y a t t h a t H e f e l t t h a t t h i s q u a l i f i e r could b e i n t e r p r e t e d t o i n c l u d e t h e airport". unintended consequences of t h o s e who might n o t b e d e l i b e r a t e l y t r y i n g t o endanger s a f e t y a t an a i r p o r t and t h i s posed a problem s i n c e a c t s of t h i s n a t u r e should n o t b e w i t h i n t h e scope of t h e instrument. Secondly, he considered t h e term " s a f e t y a t t h e a i r p o r t " t o o vague, s i n c e one could l i m i t t h e scope of t h e instrument depending on how t h e word "safety" was d e f i n e d . The D e l e g a t e s of Argentina and Tanzania advocated t h e i n c l u s i o n of t h e concept of t h r e a t as an o f f e n c e , as d i d t h e D e l e g a t e of I n d i a , s i n c e i t was f e l t t h a t i n view of t h e g r a v i t y of t h e o f f e n c e , t h e mere t h r e a t of such an a c t would c o n s t i t u t e a s e r i o u s a c t i o n a g a i n s t t h e s a f e and o r d e r l y growth of c i v i l a v i a t i o n . The D e l e g a t e of I n d i a d e c l a r e d , however, t h a t he would be s a t i s f i e d
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i f t h e r e were a consensus w i t h i n t h e Conference, as t h e r e had been w i t h i n t h e Legal Committee, t h a t t h e p r o v i s i o n of "attempt" a l s o covered t h e concept of "threat
The D e l e g a t e of Tanzania put f o r t h a s u g g e s t i o n t o improve t h e Preamble t o t h e P r o t o c o l by adding, a f t e r t h e words "matter of g r a v e concern" i n t h e second 'Considering' c l a u s e , t h e words " t o t h e i n t e r n a t i o n a l community". T h i s s u g g e s t i o n would b e c i r c u l a t e d t o t h e Delegates i n t h e form of a paper. F i n a l l y , t h e D e l e g a t e s of Argentina, I n d i a and Tanzania expressed t h e i r s u p p o r t f o r t h e g e n e r a l consensus t h a t t h e new instrument b e i n t h e form of a P r o t o c o l a d d i t i o n a l and supplementary t o t h e Montreal Convention. The Delegate o f A r g e n t i n a , wishing t h e reasons f o r t h i s support r e c o r d e d , explained t h a t t h e c h o i c e t o c r e a t e a P r o t o c o l r a t h e r t h a n a new Convention w a s a p p r o p r i a t e because of t h e c l o s e r e l a t i o n s h i p of t h e crimes d e a l t w i t h i n b o t h i n s t r u m e n t s and t h e s i m i l a r i t y of t h e p r o t e c t e d l e g a l i n t e r e s t and because a P r o t o c o l t o a Convention t h a t was a l r e a d y r a t i f i e d by such a l a r g e number of S t a t e s would b e more q u i c k l y and e a s i l y adopted t h a n a new Convention w i t h i t s new i s s u e s and q u e s t i o n s . With t h e Montreal Convention as t h e b a s i s and s o u r c e of t h e P r o t o c o l , t h e problem of developing a new d o c t r i n e w i t h p o s s i b l e d i f f e r e n c e s w i t h r e s p e c t t o t h e previous Convention would b e e l i m i n a t e d . (The meeting adjourned a t 1640 h o u r s )
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Some D e l e g a t e s commented on t h e Q u e s t i o n of what e x a c t l y c o n s t i t u t e d The D e l e g a t e of A r g e n t i n a an a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n . g s t a t e d h i s D e l e- a t i o n ' s i n t e n t i o n t o submit a paper f o r t h e purpose of developing a d e f i n i t i o n of t h e concept, whereas t h e Delegate of I n d i a supported t h e t e x t of paragraph 1 - i n a s much a s it spoke of a i r p o r t s s e r v i n g bis it adequately covered t h e international c i v i l aviation, believing requirements. The D e l e g a t e of Argentina a l s o wished t o s e e d e f i n e d t h e term Il s e v e r e p e n a l t y " s i n c e it appeared i n b o t h t h e Montreal and The Hague Concerning t h e Conventions and would b e a p p l i c a b l e t o t h e P r o t o c o l as w e l l . i s s u e of whether o r n o t t o i n c l u d e o f f - a i r p o r t f a c i l i t i e s i n t h e scope of t h e P r o t o c o l , t h e D e l e g a t e of I n d i a f e l t t h a t o n l y t h o s e a c t s committed a g a i n s t f a c i l i t i e s s i t u a t e d a t t h e a i r p o r t should b e included.
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DRAFT Second Meeting Commission of t h e Whole
SECOND MEETING OF THE COMMISSION OF THE WHOLE (Thursday, 11 February 1988, a t 1000 h o u r s )
Chairman:
AGENDA ITEM 9:
Mr. P. K i r s c h
CONSIDERATION OF THE DRAFT INSTRUMENT
1. R e f e r r i n g t o a p o i n t r a i s e d by t h e regarding t h e o r g a n i z a t i o n of work proposed by t h e Chairman e a r l i e r , t h e Chairman explained t h a t t h e reason he had r e q u e s t e d d e l e g a t i o n s t o c o n c e n t r a t e t h e i r a t t e n t i o n i n i t i a l l y on c e r t a i n p o i n t s w a s t o permit him t o b e t t e r i d e n t i f y t h e s u b s t a n t i v e p o s i t i o n s of d e l e g a t i o n s on t h o s e s u b j e c t s , t o d e c i d e which q u e s t i o n s were going t o be r e f e r r e d t o t h e D r a f t i n g Committee and t o b e t t e r o r g a n i z e t h e l a t e r s t a g e s of t h e work.
The d i s c u s s i o n which followed mainly c e n t e r e d around t h e f o u r , p o i n t s t h e Chairman had p r e v i o u s l y requested d e l e g a t i o n s t o d i r e c t t h e i r comments t o .
2.
6. The D e l e g a t e of M a l a w i commented t h a t A r t i c l e 2 b i s harmonized t h e p r o v i s i o n s of t h e P r o t o c o l w i t h t h o s e of t h e Montreal Convention, t a k i n g i n t o account t h e c o u n t r y of occurrence as t h e l o g i c a l c h o i c e of forum. H e supported t h e comments of t h e Kingdom of t h e Netherlands r e g a r d i n g i n t e r e s t s and r e s p o n s i b i l i t i e s of t h e S t a t e of occurrence as contained i n V I A Doc No. 11. Copyright International Civil Aviation Organization
Provided by IHS under license with ICAO No reproduction or networking permitted without license from IHS Not for Resale
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P o i n t No .1. J u r i s d i c t i o n and E x t r a d i t i o n
3. The Delegations of Venezuela and C h i l e shared t h e o p i n i o n t h a t A r t i c l e III of t h e P r o t o c o l as d r a f t e d by t h e S e c r e t a r i a t should s a t i s f y t h e requirements of S t a t e s i n r e s p e c t of j u r i s d i c t i o n and e x t r a d i t i o n . They b e l i e v e d t h a t it would n o t b e a p p r o p r i a t e t o e s t a b l i s h any p r e f e r e n t i a l jurisdiction. The D e l e g a t e of Venezuela f u r t h e r suggested t h a t i t would b e a p p r o p r i a t e t o e s t a b l i s h as i n A r t i c l e 5, paragraph 3 of t h e Montreal Convention, t h a t any o t h e r l e g a l j u r i s d i c t i o n i n accordance w i t h n a t i o n a l l e g i s l a t i o n was n o t exc luded
The D e l e g a t e of Kenya affirmed t h a t h i s D e l e g a t i o n supported t h e recommendation of t h e Legal Committee t h a t t h e S t a t e where t h e o f f e n d e r w a s p r e s e n t should e s t a b l i s h j u r i s d i c t i o n , b u t mindful of t h e b a l a n c e between j u r i s d i c t i o n and e x t r a d i t i o n e s t a b l i s h e d by t h e Montreal Convention, would support such views which d i d n o t d i s t u r b t h a t balance.
4.
5. The D e l e g a t e of Norway s t r e s s e d t h e view t h a t t h e instrument should e s t a b l i s h u n i v e r s a l j u r i s d i c t i o n f o r t h e o f f e n c e s i n q u e s t i o n , and t h a t t h e new instrument should i n no way d e p a r t from t h e Montreal Convention of 1971, should n o t u p s e t t h e d e l i c a t e b a l a n c e between p r o s e c u t i o n and e x t r a d i t i o n and t h a t t h e r e should b e no s p e c i f i c p r o v i s i o n favouring i n any way t h e S t a t e i n whose t e r r i t o r y t h e o f f e n c e was committed. S i m i l a r views were expressed b y t h e Delegate of Japan who f e l t t h a t t h e f i n a l d e c i s i o n should b e a t t h e d i s c r e t i o n of t h e S t a t e where t h e o f f e n d e r was p r e s e n t .
P o i n t No. 2 . Prevent i v e measures 7. Most of t h e D e l e g a t i o n s who p r e s e n t e d t h e i r views d u r i n g t h i s meeting were of t h e o p i n i o n t h a t p r e v e n t i v e measures were more p r o p e r l y d e a l t w i t h The D e l e g a t e of w i t h i n t h e ambit of Annex 1 7 of t h e Chicago Convention. A u s t r i a considered t h a t a r e f e r e n c e t o p r e v e n t i v e measures was d e s i r a b l e b u t could be d e a l t w i t h i n a r e s o l u t i o n included i n t h e F i n a l Act. T h i s s u g g e s t i o n was supported by t h e D e l e g a t e s of C h i l e and Malawi.
8. The D e l e g a t e of Venezuela i n d i c a t e d t h a t h e r D e l e g a t i o n favoured t h e i n c l u s i o n of a paragraph r e l a t i n g t o measures t h a t should be adopted by S t a t e s t o p r e v e n t t h e committing of o f f e n c e s . The D e l e g a t e of B u l g a r i a expressed a s i m i l a r view and supported t h e wording suggested i n V I A Doc No. 26. 9. R e f e r r i n g t o t h e s t a t e m e n t of t h e D e l e g a t e of Ghana s e v e r a l D e l e g a t i o n s expressed t h e view t h a t a s s i s t a n c e should b e accorded t o developing c o u n t r i e s which lacked t h e r e s o u r c e s t o i n t r o d u c e adequate s e c u r i t y measures a t their airports. It was suggested t h a t t h i s Conference should adopt a r e s o l u t i o n on t h e s u b j e c t
P o i n t No.3. P a r t i c i p a t i o n of S t a t e s i n t h e new instrument p a r t i e s t o t h e Montreal Convention of 1971
10. The D e l e g a t e s of Venezuela, C h i l e , I t a l y and Malawi expressed t h e o p i n i o n t h a t r a t i f i c a t i o n of o r adherence t o t h e P r o t o c o l should imply, a u t o m a t i c a l l y , f o r S t a t e s n o t p a r t i e s of t h e Convention, adherence t o t h e Montreal Convention o f 1971. Speaking i n s u p p o r t of t h i s view t h e Delegates of A u s t r i a and Kenya, emphasized f u r t h e r t h a t t h e y opposed opening any p o s s i b i l i t y concerning t h e p a r t i c i p a t i o n of S t a t e s i n t h e P r o t o c o l who were n o t p a r t i e s t o t h e Convention. The D e l e g a t e of Japan s t a t e d t h a t h i s D e l e g a t i o n supported t h e b a s i c concept contained i n t h e S e c r e t a r i a t ' s d r a f t b u t proposed t h e wording p u t forward by h i s D e l e g a t i o n i n VIA Doc No. 25.
11. The D e l e g a t e of B u l g a r i a expressed doubts as t o whether new member S t a t e s acceding t o t h e Montreal Convention would a u t o m a t i c a l l y accede t o t h e Protocol.
P o i n t No.4. I m p l i c a t i o n s service a t t h e airDort" of inclusion i n t h e P r o t o c o l of "aircraft not in
12. The D e l e g a t e s of Venezuela, A u s t r i a , Kenya and s t a t e m e n t s expressed themselves i n f a v o u r of t h e i n c l u s i o n of service a t t h e airport" i n t h e Protocol. The D e l e g a t e of f u r t h e r t h a t h i s D e l e g a t i o n would wish t o i n c l u d e a l l t y p e s make no d i s t i n c t i o n between p r i v a t e a i r c r a f t and a i r c r a f t nature.
13. R e f l e c t i n g on t h e s t a t e m e n t by t h e D e l e g a t e of F r a n c e , t h e D e l e g a t e o f A u s t r i a s t a t e d t h a t h i s D e l e g a t i o n had i n t e r p r e t e d A r t i c l e I I I paragraph 2 - and f o r t h a t matter A r t i c l e 5 of t h e Montreal Convention, i n bis,
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if
they are not
Malawi in their "aircraft not i n A u s t r i a proposed of a i r c r a f t and of a commercial
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q u i t e a d i f f e r e n t manner. According t o h i s D e l e g a t i o n ' s view, n e i t h e r of t h e s e A r t i c l e s contained any p r o v i s i o n s r e s t r i c t i n g S t a t e s t o e x t r a d i t e t o any country. Rather t h e y d e a l t e x c l u s i v e l y w i t h t h e q u e s t i o n of e s t a b l i s h m e n t of jurisdiction. He r e c a l l e d t h a t i n t h e d i s c u s s i o n of t h e Legal Committee t h e r e f e r e n c e t o paragraph l ( a ) had been included i n paragraph 2 bis b e f o r e i t had been decided t o i n c l u d e a i r c r a f t n o t i n s e r v i c e w i t h i n t h e scope of t h e P r o t o c o l . A t t h a t p o i n t i n t h e d i s c u s s i o n , any r e f e r e n c e t o paragraphs (b) ( c l and ( d ) would have been t o t a l l y i r r e l e v a n t . Now t h a t a i r c r a f t n o t i n s e r v i c e on t h e ground have been included i n t h e P r o t o c o l , i t followed t h a t , r a t h e r t h a n t o d e l e t e reference t o paragraph l ( a ) a l t o g e t h e r , t h e l a s t l i n e of paragraph 2 - should be expanded t o i n c l u d e a r e f e r e n c e t o paragraphs l ( b ) bis and l ( d ) a s w e l l . The view of t h e D e l e g a t e of A u s t r i a w a s shared by t h e Delegat i o n s of Norway and Kenya.
14 The D e l e g a t e of I t a l y concurred w i t h t h e a n a l y s i s made by t h e Delegate of A u s t r i a r e g a r d i n g t h e meaning of A r t i c l e 5 of t h e Montreal Convention, and moreover on t h e scope of t h e o b l i g a t i o n f o r e x t r a d i t i o n under t h a t Convention. However, h e f e l t t h a t a much s i m p l e r way of a d d r e s s i n g t h e problem would b e t o d e l e t e paragraph 2 b i s of A r t i c l e 5 and, i n s t e a d , t o amend t h e e x i s t i n g paragraph 2 of A r t i c l e 5 by adding i n t h e t h i r d l i n e a f t e r t h e mention of A r t i c l e 1, paragraphs l ( a ) , ( b ) and ( c ) t h e mention a l s o of p a r a 1 - of t h i s A r t i c l e . bis Among o t h e r c o n s i d e r a t i o n s , t h i s p r o v i s i o n would cover an a t t a c k on an a i r c r a f t n o t i n s e r v i c e on which t h e o f f e n d e r escaped t o another S t a t e .
15. Apart from t h e f o u r p o i n t s d e a l t w i t h above D e l e g a t i o n s gave t h e i r views on t h e following s u b j e c t s :

16. The D e l e g a t e of B u l g a r i a considered t h a t t h e t i t l e of t h e D r a f t P r o t o c o l being contemplated was i n c o r r e c t and b e l i e v e d t h a t i t should c o n t a i n t h e p h r a s e "to d e a l w i t h unlawful a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n " t h e r e b y r e f l e c t i n g i t s s p e c i f i c aim. Paragraph 1 b i s of A r t i c l e 1. 17. The Delegates of Norway, I t a l y and M a l a w i w e r e of t h e o p i n i o n t h a t t h e l i s t i n g of means used i n A r t i c l e 1, paragraph 1 b i s should b e d e l e t e d as i t might narrow t h e scope of t h e P r o t o c o l and p r o v i d e an escape v a l v e f o r offenders.
18. The D e l e g a t e o f Malawi was i n g e n e r a l a g r e e m e n t w i t h t h o s e d e l e g a t i o n s who wished t o add an e x t r a p h r a s e i n c l u d i n g "or o t h e r means" b u t f e l t t h a t i n some l e g a l systems t h i s l a t t e r p h r a s e might o n l y r e l a t e t o "devices, s u b s t a n c e s o r weapons" and would exclude, f o r example, a l e t h a l k a r a t e blow. He suggested "using whatever means" o r "using any means" would a l l e v i a t e t h i s concern. Another minor amendment t h a t h e proposed was t h e s u b s t i t u t i o n of "performs" by "commits" i n A r t i c l e 1 b i s ( a ) . H e cautioned a g a i n s t t h e u s e of t h e words " s e r i o u s " o r " s e r i o u s l y " t o q u a l i f y t h e i n j u r y o r bis damage t o f a c i l i t i e s i n paragraph 1 - of A r t i c l e 1 as t h i s would b r i n g i n an element of s u b j e c t i v i t y i n determining g u i l t . R e f l e c t i n g on t h e concerns expressed i n V I A Doc No. 24, t h e Delegate of Malawi d i d n o t a g r e e w i t h t h e United Kingdom t h a t d e f i n i t i o n of t h e o f f e n c e s covered r e q u i r e d f u r t h e r
--`,,```,,,,````-`-`,,`,,`,`,,`---
- 44 -
improvement i n o r d e r t o d e f i n e a c r b e a s being i n t e r n a t i o n a l i n scope and n o t a m a t t e r f o r t h e S t a t e ' s domestic laws. I n h i s view, elements i n v a r i o u s l e g a l systems would b e adequate t o m e e t t h e s e concerns.
19. The D e l e g a t e of Japan was of t h e o p i n i o n t h a t t h e words "is l i k e l y t o cause" i n paragraph 1 - ( a ) was a s u b j e c t i v e concept and should b e d e l e t e d . bis H e a l s o had d i f f i c u l t y w i t h t h e views expressed i n V I A Doc No. 24. Referring t o t h e q u a l i f i e r suggested by t h e United Kingdom, i t was h i s D e l e g a t i o n ' s view t h a t t h e proposed p h r a s e "is designed t o endanger" would add a s u b j e c t i v e element i n t h e a p p l i c a t i o n of paragraph 1 b i s of A r t i c l e 1. I t was a l s o h i s D e l e g a t i o n ' s o p i n i o n t h a t t h e term " s a f e t y a t t h a t a i r p o r t " appearing i n t h e d r a f t prepared by t h e S e c r e t a r i a t encompassed i n i t s meaning t h e " s a f e o p e r a t i o n of t h e a i r p o r t " .
20. The D e l e g a t i o n of Venezuela p r e f e r r e d t h a t t h e l i s t i n g i n A r t i c l e 1 paragraph 1 - b e r e t a i n e d and was n o t a v e r s e t o t h e i n s e r t i o n of an bis a d d i t i o n a l p h r a s e i n c l u d i n g "or o t h e r means". I n any c a s e h e r D e l e g a t i o n would be w i l l i n g t o go along w i t h t h e m a j o r i t y i n t h e Conference on t h i s i s s u e . 21. The D e l e g a t i o n of C h i l e a l s o agreed w i t h t h o s e d e l e g a t i o n s who had proposed t h e a d d i t i o n of "or o t h e r means" t o t h e l i s t i n g of t h e means used t o commit o f f e n c e s .
'
22. The D e l e g a t e of Kenya supported t h e l i s t i n g of t h e means committing o f f e n c e s as provided f o r i n t h e p r e s e n t d r a f t of A r t i c l e 1 bis.
of
23. The D e l e g a t e of A u s t r i a supported t h e s u g g e s t i o n of t h e U n i t e d Kingdom t h a t t h e q u a l i f i e r t o A r t i c l e 1 paragraph 1 - should b e improved t o bis i n c l u d e an element o f i n t e n t . T h i s view was shared by t h e D e l e g a t e s of Norway and Kenya. I n t h i s c o n n e c t i o n , t h e D e l e g a t e of I t a l y suggested t h a t an amendment t o t h e q u a l i f i e r of paragraph 1 - of A r t i c l e 1 r e a d i n g " i f such an bis a c t i s a b e d a t endangering and a c t u a l l y endangers s a f e t y a t t h a t a i r p o r t " might meet t h e concern of t h e United Kingdom d e l e g a t i o n .
24. The D e l e g a t e of B u l g a r i a was a l s o of t h e o p i n i o n t h a t " s a f e o p e r a t i o n of t h e a i r p o r t " was n o t more e x p l i c i t t h a n " s a f e t y a t t h a t a i r p o r t " and s t a t e d t h a t i n h i s D e l e g a t i o n ' s view " i n t e n t " was a l r e a d y e s t a b l i s h e d in t h e bis i n t r o d u c t o r y s t a t e m e n t of paragraph 1 - by t h e p h r a s e "unlawfully and i n t e n t ionally".
I n c l u s i o n of " t h r e a t s "
25. The D e l e g a t e of Norway favoured t h e i n c l u s i o n of " t h r e a t s " in A r t i c l e 1 as h i s D e l e g a t i o n was n o t convinced t h a t a r e f e r e n c e t o a t t e m p t s a l s o covered t h r e a t s . The D e l e g a t e s of C h i l e and Kenya supported t h e i n c l u s i o n of " t h r e a t s " as one of t h e t y p e s of o f f e n c e s contemplated by t h e P r o t o c o l , b u t i n o r d e r t o avoid an imbalance w i t h t h e Montreal Convention t h e D e l e g a t e o f Kenya f e l t t h a t t h i s word should b e included i n t h e Montreal Convention as a whole.
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I
l
26. The Delegate of I t a l y voiced an o p i n i o n s i m i l a r t o t h a t of t h e Delegate of Kenya i n t h a t t h e n o t i o n of " t h r e a t s " should n o t b e included i n t h e P r o t o c o l u n l e s s i t was included i n t h e e n t i r e Montreal Convention as w e l l . 27. The D e l e g a t e of Malawi f e l t t h a t it would b e d i f f i c u l t t o a r r i v e a t a u n i v e r s a l d e f i n i t i o n of " t h r e a t s " and b e l i e v e d t h a t i t s i n c l u s i o n was n o t pract k a b l e .
--`,,```,,,,````-`-`,,`,,`,`,,`---
28. The Delegate of B u l g a r i a expressed t h e view t h a t " t h r e a t " and was a g a i n s t i t s i n c l u s i o n i n t h e P r o t o c o l .
"attempt"
covered
29. The Chairman thanked t h e Delegates f o r t h e i r views s t a t i n g t h a t he now had a much c l e a r e r i d e a of how t o proceed and adjourned t h e Commission a t 1230 hours.
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DRAFT Third Meeting Commission of t h e Whole
THIRD MEETING O THE COMMISSION O TEE WHOLE F F
(Thursday, 11 February 1988, a t 1400 h o u r s )
Chairman:
AGENDA ITEN 9:
Mr. P. K i r s c h
CONSIDERATION -OF THE DRAFT INSTRUMENT
1. Opening t h e meeting, t h e Chairman drew t h e a t t e n t i o n of t h e Commission t o Rule 6 of t h e Rules of Procedure as o u t l i n e d i n V I A Doc No. 2, concerning t h e p a r t i c i p a t i o n of t h e p u b l i c i n meetings of commissions, committees o r working groups and advised t h e Commission t h a t t h e r e were a f e w persons p r e s e n t who had a p r o f e s s i o n a l i n t e r e s t i n t h e d e l i b e r a t i o n s of t h e A s no o b j e c t i o n s were r a i s e d t o t h e i r p r e s e n c e , he t h e n i n v i t e d Commission. comments from t h e Delegates p r e s e n t .
P o i n t No .1. J u r i s d i c t i o n and E x t r a d i t i o n
2. The D e l e g a t e of Greece emphasized t h e importance t h a t t h e b a l a n c e e s t a b l i s h e d by t h e Montreal Convention should n o t b e u p s e t by g r a n t i n g p r i o r i t y of e x t r a d i t i o n t o t h e S t a t e where t h e o f f e n c e was committed. With regard t o adding j u r i s d i c t i o n i n favour of t h e S t a t e of t h e o f f e n d e r ? s o r v i c t i m ? s n a t i o n a l i t y , s h e considered t h a t t h i s might n o t b e a d v i s a b l e f o r t h e s a k e of u n i f o r m i t y w i t h t h e Montreal Convention.
The D e l e g a t e of Jamaica s t a t e d t h a t t h e p r i n c i p l e s r e l a t i n g t o j u r i s d i c t i o n should b e compatible with t h o s e of t h e Montreal Convention and supported t h e p r o v i s i o n s contained i n A r t i c l e III of t h e D r a f t P r o t o c o l contained i n V I A Doc No. 3 , r e q u i r i n g t h e S t a t e where t h e o f f e n d e r was found t o assert j u r i s d i c t i o n . H i s Delegation would n o t wish any p r i o r i t i e s t o b e established regarding j u r i s d i c t i o n o r e x t r a d i t i o n . The D e l e g a t e of Peru b e l i e v e d t h a t paragraph 2 b i s of A r t i c l e 5 of t h e d r a f t prepared by t h e S e c r e t a r i a t guaranteed t h e a t t a i n m e n t of t h e o b j e c t i v e s of t h e P r o t o c o l .
3.
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4. The D e l e g a t e of Sweden was of t h e o p i n i o n t h a t A r t i c l e III a s d r a f t e d by t h e S e c r e t a r i a t , was well-balanced but a s s o c i a t e d himself w i t h t h e Norwegian Delegation i n being opposed t o an o b l i g a t i o n t o e x t r a d i t e t o any s p e c i f i c c o u n t r y which might be i n t e r e s t e d because of t h e o f f e n c e . S i m i l a r views were expressed by t h e D e l e g a t e of Denmark.
5. The D e l e g a t e of A u s t r a l i a explained t h a t i t was a fundamental element of A u s t r a l i a n law t h a t A u s t r a l i a should n o t b e compelled t o e x t r a d i t e . He s t a t e d f u r t h e r t h a t t h e d e l i c a t e balance between e x t r a d i t i o n and p r o s e c u t i o n a s expressed i n t h e Montreal Convention should n o t b e d i s t u r b e d .
6. O t h e q u e s t i o n of e x t r a d i t i o n and p r o s e c u t i o n , t h e D e l e g a t e of n I s r a e l favoured an e q u a l f o o t i n g f o r t h o s e two procedures w i t h no p r e f e r e n c e g i v e n t o e i t h e r one, i n conformity with A r t i c l e s 7 and 8 of t h e Montreal
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Convention. He p o i n t e d o u t , however, t h a t o t h e r S t a t e s ' might have a l e g i t i m a t e r i g h t of j u r i s d i c t i o n over t h e o f f e n d e r , f o r example, t h e v i c t i m ' s c o u n t r y . P o i n t No. 2 . Prevent i v e Measures
7. Most of t h e D e l e g a t i o n s who o f f e r e d t h e i r comments f e l t t h a t p r e v e n t i v e measures were b e s t d e a l t w i t h i n t h e c o n t e x t of Annex 17 t o t h e Chicago Convention. The D e l e g a t e s of Peru, A u s t r a l i a and Denmark expressed t h e i r w i l l i n g n e s s t o s u p p o r t a r e s o l u t i o n i n t h e F i n a l Act c o v e r i n g t h e s e measures.
8. The D e l e g a t e of Jamaica f e l t t h a t t o make p r e v e n t i v e measures a l e g a l o b l i g a t i o n might n o t b e p o s s i b l e t o implement because of t h e c o n s i d e r a b l e d i s p a r i t y i n t h e r e s o u r c e s of S t a t e s and f o r t h a t r e a s o n might a l s o impede rat i f i c a t ion. 9. The D e l e g a t e of t h e I s l a m i c Republic of I r a n urged t h e i n c l u s i o n of p r o v i s i o n s on p r e v e n t i v e measures i n t h e P r o t o c o l . 10. The D e l e g a t e of Cte d ' I v o i r e supported D e l e g a t e of Ghana r e g a r d i n g t e c h n i c a l a s s i s t a n c e concerning s e c u r i t y measures a t t h e i r a i r p o r t s .
t h e suggestion t o developing if of t h e nations
they a r e not
11. Most of t h e d e l e g a t i o n s supported t h e p r o v i s i o n s of paragraph 2 of A r t i c l e V I of t h e d r a f t P r o t o c o l a t t a c h e d t o V I A Doc No. 3 .
12. The D e l e g a t e of t h e I s l a m i c Republic of I r a n proposed t h a t t h e I n t e r n a t i o n a l C i v i l A v i a t i o n Organization b e added t o t h e l i s t of D e p o s i t a r i e s i n order t o f a c i l i t a t e t h e r a t i f i c a t i o n process.

P o i n t No.4. I m p l i c a t i o n s service a t the airport" of i n c l u s i o n i n t h e P r o t o c o l of "aircraft' not in
13. Most of t h e d e l e g a t i o n s favoured t h e i n c l u s i o n "aircraft not i n service a t t h e airport" in t h e Protocol.
of
the
phrase
With regard t o t h e e f f e c t of t h i s i n c l u s i o n on j u r i s d i c t i o n and e x t r a d i t i o n , t h e D e l e g a t e of Greece f e l t t h a t j u r i s d i c t i o n should a l s o b e e s t a b l i s h e d i n favour of t h e S t a t e where t h e a i r c r a f t was r e g i s t e r e d , t h e S t a t e where t h e l e s s e e had h i s p r i n c i p a l p l a c e of b u s i n e s s o r t h e S t a t e of h i s permanent r e s i d e n c e , as t h i s would b r i n g t h e P r o t o c o l a s c l o s e as p o s s i b l e t o t h e Montreal Convent ion.
14.
15. The D e l e g a t e of A u s t r a l i a a l s o favoured t h e i n c l u s i o n of t h e S t a t e r e g i s t r y of t h e a i r c r a f t being included i n t h e p r o v i s i o n r e l a t i n g jurisdiction. Regarding t h e d r a f t i n g of A r t i c l e III, he and t h e D e l e g a t e Denmark supported t h e p r o p o s a l of t h e D e l e g a t e of I t a l y on t h e need f o r simple a d d i t i o n t o t h e p r e s e n t A r t i c l e 5 of t h e Montreal Convention.
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of to of a
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16. While i n d i c a t i n g h i s p r e f e r e n c e f o r a i r c r a f t n o t i n s e r v i c e being included i n t h e P r o t o c o l , t h e D e l e g a t e of I s r a e l f e l t t h a t t h e main purpose of t h e P r o t o c o l should b e t o p r o t e c t people r a t h e r t h a n o b j e c t s , b u t i f such a p r o p o s a l caused d i f f i c u l t i e s w i t h any o t h e r d e l e g a t i o n s , I s r a e l would be ready t o go along w i t h t h e m a j o r i t y view.
17. The D e l e g a t e of Jamaica contended t h a t t h e f a c t t h a t an a i r c r a f t happened t o be a p i e c e of p r o p e r t y a t an a i r p o r t should n o t n e c e s s a r i l y make i t a matter f o r i n t e r n a t i o n a l p r o t e c t i o n any more t h a n t r u c k s o r o t h e r v e h i c l e s . I n o r d e r t o make t h e d e s t r u c t i o n of an a i r c r a f t n o t i n s e r v i c e an i n t e r n a t i o n a l o f f e n c e , i t was h i s o p i n i o n t h a t t h e a c t of d e s t r u c t i o n o r damage must be such as f i r s t l y t o d i s r u p t t h e s e r v i c e s of t h e a i r p o r t and secondly t o endanger t h e s a f e t y of t h e a i r p o r t o r i t s o p e r a t i o n s , and u n l e s s t h e r e was a combination of t h o s e f a c t o r s t h e r e would be no b a s i s f o r which l i a b i l i t y could be e s t a b l i s h e d under t h i s P r o t o c o l . The same could b e s a i d f o r any o t h e r kind of p r o p e r t y a t an a i r p o r t o t h e r t h a n an a i r c r a f t on t h e ground.
Paragraph 1 b i s of A r t i c l e 1
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18. The D e l e g a t e of Greece f e l t t h a t paragraph 1 b i s w a s as c l o s e t o precision as possible. Her Delegation considered t h a t t h e i n s e r t i o n of a new element s t r e s s i n g t h e t e r r o r i s t ' s i n t e n t i o n would n o t o n l y d e p a r t from t h e model of t h e Montreal Convention b u t would a l s o make i t more d i f f i c u l t t o d e f i n e what a t e r r o r i s t a c t i o n was. It was h e r o p i n i o n t h a t t h e q u a l i f i e r of paragraph 1 bis d e f i n e d t h e t y p e of a c t s u f f i c i e n t l y .
19. The D e l e g a t e of Cte d ' I v o i r e was s a t i s f i e d w i t h t h e d r a f t i n g of paragraph 1 - except f o r t h e e x p r e s s i o n " d i s r u p t s " appearing i n 1 - ( b ) . bis bis He supported t h e view of t h e Delegation of France expressed i n V I A Doc No. 14, t h a t t h e word " i n t e r r u p t s " , which accorded w i t h A r t i c l e 10 paragraph 2 of t h e Montreal Convention, should be used i n s t e a d .
20. Rather than deleting the l i s t i n g of t h e means used in bis, paragraph 1 - t h e D e l e g a t e of A u s t r a l i a p r e f e r r e d t h e a d d i t i o n of t h e term llor any o t h e r means". He endorsed t h e view of t h e Delegate of Japan concerning bis. t h e q u a l i f i e r t o paragraph 1 - H e f e l t t h e consequences of a c t s on t h e s a f e o p e r a t i o n of an a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n were t h e important element and i n t e n t i o n s <ir motives behind t h o s e a c t s would p r e s e n t p r o s e c u t o r s with considerable d i f f i c u l t i e s .
21. Commenting on t h e l i s t i n g of means used t o commit t h e o f f e n c e , t h e D e l e g a t e of t h e I s l a m i c Republic of I r a n favoured a more e x p l i c i t wording t o cover a l l d e s t r u c t i v e means. The Delegates of Sweden and I s r a e l thought t h e l i s t of means used should b e d e l e t e d . The D e l e g a t e of Jamaica s t a t e d t h a t h i s Delegation would keep an open mind as t o whether t h e p h r a s e "or any o t h e r means" should be added o r n o t .
22. The D e l e g a t e of Peru f e l t t h a t t h e p h r a s e "or i s l i k e l y t o cause" i n bis sub-paragraph ( a ) of paragraph 1 - and t h e p h r a s e "or i s l i k e l y t o endanger" i n t h e q u a l i f i e r should be d e l e t e d s i n c e i t w a s h i s D e l e g a t i o n ' s o p i n i o n t h a t
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i f a c t s had n o t t a k e n p l a c e t h e y could n o t b e c l a s s i f i e d as o f f e n c e s . He a l s o e x p r e s s e d d o u b t s w i t h r e g a r d t o t h e u s e o f t h e words " s e r i o u s " i n sub-paragraph ( a ) of 1 - and " s e r i o u s l y " i n sub-paragraph ( b ) . bis H e recalled t h a t t h e concept of " s e r i o u s " had been e l i m i n a t e d i n t h e Montreal Convention and i t would n o t b e c o n s i s t e n t t o i n c l u d e it i n t h e P r o t o c o l .
23. The D e l e g a t e of Sweden supported t h e view of t.he D e l e g a t e of t h e U n i t e d Kingdom e x p r e s s e d i n V I A Doc No. 2 4 , t h a t t h e q u a l i f i e r o f paragraph 1 - r e q u i r e d more p r e c i s e d e f i n i t i o n . The D e l e g a t e of Denmark f e l t bis t h a t an i n t r o d u c t i o n of t h e concept of i n t e n t i o n a s suggested by t h e United Kingdom would l i m i t t h e wording i n t h i s paragraph t o more t y p i c a l l y t e r r o r i s t H e a l s o suggested a minor amendment t o paragraph 2 of A r t i c l e II of actions. t h e S e c r e t a r i a t ' s d r a f t : t h e words " A r t i c l e 1 o f " should appear b e f o r e t h e words "the Convention" i n t h e f i r s t l i n e of t h a t paragraph.
I n c l u s i o n of " t h r e a t s " The D e l e g a t e of Greece thought i t d e f i n i t e l y u n d e s i r a b l e t o make an i n t e r n a t i o n a l o f f e n c e o u t . o f a mere t h r e a t . The D e l e g a t e of Sweden favoured t h e mention of t h e concept of t h r e a t somewhere i n d e s c r i b i n g t h e o f f e n c e .
24.
25. The D e l e g a t e of A u s t r a l i a supported t h e view of t h e D e l e g a t e of I t a l y on t h i s s u b j e c t t h a t a s t h e Montreal Convention d i d n o t i n c l u d e i n A r t i c l e 1 paragraph 1, t h e making of a t h r e a t as an o f f e n c e , i f t h i s Conference were ready t o g i v e g e n e r a l a p p l i c a t i o n t o t h e making of t h r e a t s as an o f f e n c e , t h e n However, h i s Delegat i o n he would support such a g e n e r a l a p p l i c a t i o n . considered t h a t t h e t h r e a t should b e one t o commit any of t h e s u b s t a n t i v e o f f e n c e s , and t h a t t h e t h r e a t should a c t u a l l y r e s u l t i n danger t o t h e s a f e o p e r a t i o n of t h e a i r p o r t .
26. Other comments by D e l e g a t e s concerned t h e i n c l u s i o n w i t h i n t h e scope of t h e P r o t o c o l of f a c i l i t i e s and persons s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n l o c a t e d o u t s i d e t h e a i r p o r t boundary, The D e l e g a t e s of t h e I s l a m i c Republic of I r a n , Peru and A u s t r a l i a supported t h e i r i n c l u s i o n , t h e D e l e g a t e of A u s t r a l i a s u g g e s t i n g f u r t h e r t h a t t h i s could b e done by i n c o r p o r a t i n g r e f e r e n c e s t o t h e s e f a c i l i t i e s i n sub-paragraph ( b ) of paragraph 1 b i s . The D e l e g a t e of Jamaica w a s of t h e o p i n i o n , however, t h a t some o f f e n c e s w i t h i n t e r n a t i o n a l elements, such a s an a t t a c k on a downtown c i t y o f f i c e , could c o n s t i t u t e c r i m i n a l a c t s under domestic l a w ,
27 The D e l e g a t e s of I s r a e l and A u s t r a l i a favoured t h e i n c l u s i o n d i s s e m i n a t i o n of f a l s e i n f o r m a t i o n w i t h i n t h e scope of t h e P r o t o c o l , conformity w i t h A r t i c l e 1 paragraph 1 ( e ) of t h e Montreal Convention. 28.

Session. The meeting was suspended a t It was resumed a t 1600 hours.
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DRAFT T h i r d Meeting Commission of t h e Whole
P o i n t No .1. J u r i s d i c t i o n and E x t r a d i t i o n 29. The D e l e g a t e of t h e U n i t e d S t a t e s c o n s i d e r e d t h a t t h e p o s s i b i l i t y of i n c l u d i n g a d d i t i o n a l b a s e s of j u r i s d i c t i o n i n t h e P r o t o c o l w i t h o u t u p s e t t i n g t h e b a l a n c e of t h e M o n t r e a l Convention was w o r t h e x p l o r i n g f u r t h e r . She f e l t t h a t t h e c o u n t r y of t h e v i c t i m a s w e l l a s t h e c o u n t r y of t h e o f f e n d e r might have a s t r o n g i n t e r e s t i n a s s e r t i n g j u r i s d i c t i o n . 30. Regarding j u r i s d i c t i o n and e x t r a d i t i o n , t h e D e l e g a t e of S w i t z e r l a n d s t a t e d t h a t h i s D e l e g a t i o n would n o t w i s h t o g i v e p r i o r i t y t o t h e S t a t e i n which t h e o f f e n c e was committed.
31. The D e l e g a t e o f S e n e g a l e m p h a s i z e d t h a t t h e p r i n c i p l e s a n d t e r m i n o l o g y used i n t h e M o n t r e a l Convention of 1971 must b e r e s p e c t e d i n t h e a d d i t i o n a l P r o t o c o l complementing i t . Regarding j u r i s d i c t i o n , i t was h i s D e l e g a t i o n s view t h a t t h e o f f e n c e should b e s u f f i c i e n t l y w e l l - d e f i n e d s o as t o establish universal jurisdiction. T h e r e f o r e t h e c o n c e p t s of t h r e a t s and i n t e n t i o n s , i f t h e y were t o b e k e p t , must b e d e f i n e d .
32. R e f e r r i n g t o t h e p o i n t r a i s e d by t h e D e l e g a t i o n of F r a n c e implying bis t h a t t h e r e was a l i m i t a t i o n on t h e d e c i s i o n t o e x t r a d i t e i n p a r a g r a p h 2 - of A r t i c l e 5 of t h e D r a f t P r o t o c o l c o n t a i n e d i n V I A Doc No. 3 , t h e D e l e g a t e of t h e Kingdom of t h e N e t h e r l a n d s p o i n t e d o u t t h a t A r t i c l e 5 d i d n o t d e a l w i t h ext r ad it i o n b u t w i t h t h e e s t a b l i s h m e n t of j u r i s d i c t i o n and h i s D e l e g a t i o n bis i n t e r p r e t e d t h e proposed A r t i c l e 2 - a s a l i m i t a t i o n on t h e o b l i g a t i o n t o e s t a b l i s h j u r i s d i c t i o n by c o n f i n i n g s u c h j u r i s d i c t i o n t o t h e o f f e n c e s i n q u e s t i o n i f e x t r a d i t i o n t o t h e t e r r i t o r i a l S t a t e were r e f u s e d . H e did not t h i n k , t h e r e f o r e , t h a t t h i s p a r a g r a p h s h o u l d b e amended, o r i f i t were, o n l y by d e l e t i o n of p a r a g r a p h l ( a ) . H e r e i t e r a t e d t h e p o i n t r a i s e d by h i s D e l e g a t i o n i n t h e L e g a l Committee t h a t p a r a g r a p h 2 b i s s h o u l d c o n t a i n t h e o b l i g a t i o n t o e s t a b l i s h j u r i s d i c t i o n o n l y i f e x t r a d i t i o n were r e q u e s t e d and r e f u s e d . Their p r o p o s a l had n o t b e e n s u p p o r t e d by t h e L e g a l Committee d e s p i t e i t s v e r y l o g i c a l b a s i s , and i f i t were n o t s u p p o r t e d by t h e C o n f e r e n c e , h i s D e l e g a t i o n would n o t persist. 33. The D e l e g a t e of M a l a y s i a e x p r e s s e d h i s D e l e g a t i o n s t h e P r o t o c o l as d r a f t e d by t h e S e c r e t a r i a t . P o i n t No.2.
--`,,```,,,,````-`-`,,`,,`,`,,`---
f u l l s u p p o r t of
P r e v e n t i v e Measures
34. The D e l e g a t e of t h e United S t a t e s o b s e r v e d t h a t S t a t e s had an o b l i g a t i o n t o implement p r e v e n t i v e measures t o p r o t e c t c i v i l a v i a t i o n a g a i n s t u n l a w f u l a c t s of v i o l e n c e . However, h e r D e l e g a t i o n was of t h e o p i n i o n t h a t s p e c i f i c measures f o r p r e v e n t i o n should b e c o n t a i n e d i n i n s t r u m e n t s t h a t e n s u r e d t h e maximum f l e x i b i l i t y on t h e p a r t of t h e i n t e r n a t i o n a l community t o respond t o changing t h r e a t s and c o n d i t i o n s and which were conducive t o c o n t i n u i n g review and u p d a t i n g . The D e l e g a t e s of S w i t z e r l a n d and Senegal a g r e e d t h a t p r e v e n t i v e measures s h o u l d f a l l w i t h i n t h e purview of Annex 17 of t h e Chicago Convention.
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if
they are not
35. The D e l e g a t e s of t h e United S t a t e s , Switzerland and Senegal expressed t h e i r s u p p o r t f o r A r t i c l e V I paragraph 2 a s proposed by t h e S e c r e t a r i a t . P o i n t No.4. I m p l i c a t i o n s of service at the airport" inclusion
i n t h e P r o t o c o l of
"aircraft
not
in
36. The D e l e g a t e of t h e United S t a t e s expressed h e r agreement w i t h " a i r c r a f t n o t i n s e r v i c e " being included i n t h e P r o t o c o l . Regarding t h e s p e c i f i c p r o p o s a l s p u t forward by A u s t r i a and I t a l y , w h i l e h e r D e l e g a t i o n was i n c l i n e d toward t h e s i m p l e r d r a f t i n g s o l u t i o n , i t would l i k e t o examine them more c l o s e l y . A s i m i l a r view was expressed by t h e D e l e g a t e of S w i t z e r l a n d .
37. R e f e r r i n g t o t h e i n c l u s i o n of a i r c r a f t n o t i n s e r v i c e i n t h e P r o t o c o l , t h e D e l e g a t e of Senegal f e l t s t r o n g l y t h a t t h e r e should b e no such lacuna i n t h e t e x t as i t would be d i f f i c u l t t o f i l l i t i n l a t e r . The D e l e g a t e of t h e Kingdom of t h e Netherlands d i d n o t a g r e e w i t h t h e 38. p r o p o s a l of t h e D e l e g a t e of A u s t r i a r e g a r d i n g t h e amendment of paragraph 2 bis of A r t i c l e 5, because i n t h e o p i n i o n of h i s D e l e g a t i o n , t h e i n c l u s i o n i n t h i s paragraph of a i r c r a f t n o t i n s e r v i c e would confuse t h e i s s u e and amend t h e whole meaning of t h e Convent ion. Paragraph 1 b i s of A r t i c l e 1 39. The D e l e g a t e of t h e United S t a t e s endorsed t h e view of p r e v i o u s s p e a k e r s t h a t t h e e x i s t i n g t e x t of paragraph 1 bis b e followed a s c l o s e l y as possible. She reminded t h e Conference t h a t t h e d r a f t under c o n s i d e r a t i o n r e f l e c t e d t h e c a r e f u l b a l a n c e of d i f f e r e n c e s of approach among a l l t h e S t a t e s which had p a r t i c i p a t e d i n t h i s e f f o r t over t h e p a s t y e a r and h e r D e l e g a t i o n would b e v e r y r e l u c t a n t t o r i s k u p s e t t i n g t h a t b a l a n c e by reopening t h i s t e x t . 40. R e f e r r i n g t o t h e p r o p o s a l put forward by t h e United Kingdom i n V I A Doc No. 24, t h e D e l e g a t e of Switzerland remarked t h a t even though t h e United Kingdom had i d e n t i f i e d a problem, h i s D e l e g a t i o n d i d n o t c o n s i d e r t h a t t h e s o l u t i o n proposed w a s n e c e s s a r i l y t h e b e s t one s i n c e t o r e f e r t o t h e i n t e n t i o n s of t h e a u t h o r of t h e a c t would i n t r o d u c e a s u b j e c t i v e element, making t h e o f f e n c e d i f f i c u l t t o d e f i n e . With regard t o t h e second p a r t of t h e United Kingdom's p r o p o s a l , h i s Delegation f e a r e d t h a t t h e i n t r o d u c t i o n of c r i t i c a l zones i n t h e a i r p o r t would complicate t h e i s s u e and supported t h e c u r r e n t wording of paragraph 1 which corresponded b e t t e r t o what w a s aimed a t i n t h e Preamble t o t h e P r o t o c o l . L a s t l y , t h e Swiss D e l e g a t i o n would l i k e t h e concept of " s e r i o u s i n j u r y " r e p l a c e d by " s e r i o u s b o d i l y i n j u r y " . According t o l e g a l s p e c i a l i s t s i n S w i t z e r l a n d , t h e c o u r t s tended t o c o n s i d e r as i n j u r i e s some v i s i b l e i n j u r y t o t h e s u r f a c e of t h e body so t h a t t h e e f f e c t of i n j u r y by s u b s t a n c e s such as t o x i c g a s e s o r r a d i o a c t i v e m a t e r i a l might need d e f i n i t i o n .
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41. R e f e r r i n g t o t h e t e x t of paragraph 1 - of A r t i c l e 1 , t h e Delegate bis of t h e Kingdom of t h e Netherlands remarked t h a t t h e p r e s e n t q u a l i f i e r was t o o I n h i s Delegation's b r o a d l y d e f i n e d as i t t a l k e d of s a f e t y a t t h e a i r p o r t . view, t h i s could i n c l u d e t r a f f i c s a f e t y o r even s a f e c o n d i t i o n s of labour. Therefore t h e y supported t h e q u a l i f i e r proposed by t h e United Kingdom i n VIA Doc No. 24 i n s o f a r as i t r e f e r r e d t o t h e s a f e o p e r a t i o n of t h e a i r p o r t . H i s D e l e g a t i o n , however, was opposed t o i n t r o d u c i n g t h e concept of d e s i g n o r , as proposed by t h e Delegation of I t a l y , t h e i n s e r t i o n of "aimed a t " i n t h e q u a l i f i e r a s t h i s would i n t r o d u c e a s u b j e c t i v e element, d i f f i c u l t t o prove i n a c o u r t of law.
(The meeting adjourned a t 1630 hours )
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DRAFT F i f t h P l e n a r y Meeting
FIFTH PLENARY MEETING (Thursday, 11 F e b r u a r y 1988, a t 1530 h o u r s )
AGENDA ITEM N0.6:
ELECTION O THE VICE-PRESIDENTS OF THE CONFERENCE F

Tunisia, of t h e
1. On n o m i n a t i o n s by t h e D e l e g a t e s of t h e United Kingdom, Venezuela, and I n d i a r e s p e c t i v e l y , t h e f o l l o w i n g V i c e - p r e s i d e n t s Conference were e l e c t e d .

F i r s t Vic e-Pres i d e n t Second V i c e - p r e s i d e n t Third Vice-president Fourth Vice-president
Mr. Dr Mr. Mr.
. Doasneife l SKo.b iAmeyo ( P(Kenya)) J eraj oland

Z o l k i p l i Abdul ( M a l a y s i a ) A. Snchez G u t i r r e z (Cuba)
2. The P r e s i d e n t welcomed t h e f o u r V i c e - p r e s i d e n t s t o t h e i r o f f i c e . Having completed Agenda Item 6 , h e d e c l a r e d t h e F i f t h P l e n a r y m e e t i n g c l o s e d .
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DRAFT F o u r t h Meet i n e Commission of t h e Whole
F FOURTH MEETING O THE COMMISSION OF THE WHOLE ( F r i d a y , 1 2 February 1988, a t 1000 h o u r s )
AGENDA ITEM 9:
CONSIDERATION O THE DRAFT INSTRUMENT F
1. A f t e r o u t l i n i n g t h e agenda of work f o r t h e Commission of t h e Wholes morning and a f t e r n o o n meetings, The Chairman re-opened d i s c u s s i o n of t h e i s s u e s on which Delegates had been i n v i t e d t o express t h e i r views.
Form of t h e new instrument
2. A number of D e l e g a t i o n s added t h e i r support t o t h e g e n e r a l agreement t h a t t h e new instrument should t a k e t h e form of a P r o t o c o l supplementary t o t h e Montreal Convention f o r t h e Suppression of Unlawful Acts a g a i n s t t h e S a f e t y of C i v i l Aviation.
3. I n response t o a q u e s t i o n r a i s e d by t h e D e l e g a t e of Colombia concerning ICAOs r o l e as a d e p o s i t a r y organ of t h e P r o t o c o l , t h e D i r e c t o r of t h e Legal Bureau r e p l i e d t h a t t h e e s t a b l i s h e d p r a c t i c e r e g a r d i n g d e p o s i t a r y powers had s e v e r a l p r e c e d e n t s i n c l u d i n g t h e Tokyo Convention of 1963 and t h e Guatemala P r o t o c o l of 1971, as w e l l as numerous amendments t o t h e Chicago Convention. R e f e r r i n g t o t h e system of t h r e e d e p o s i t a r i e s devised i n 1963 f o r t h e Convention on t h e C e s s a t i o n of Nuclear T e s t s i n t h e Atmosphere, on t h e S u r f a c e and on t h e Seas and i t s subsequent adoption a t l a t e r c o n f e r e n c e s , he i n d i c a t e d t h a t t h i s system had been followed a t t h e Montreal Conference of 1971 and t h a t t h e d r a f t P r o t o c o l presupposed t h e same system of d e p o s i t a r i e s .
J u r i s d i c t i o n and e x t r a d i t i o n
4. The importance of m a i n t a i n i n g t h e balance a l r e a d y e s t a b l i s h e d i n t h e Montreal Convent i o n between e x t r a d i t ion and prosecut i o n requirements was commented on by s e v e r a l D e l e g a t i o n s . While a number of t h e s e shared t h e view t h a t t h e t e x t proposed i n A r t i c l e III d i d s a t i s f y t h i s requirement, t h e Delegate of Canada s t a t e d t h a t h i s Delegation could n o t a g r e e t o a f o r m u l a t i o n The Delegate of New which would g i v e p r i o r i t y of e x t r a d i t i o n . o v e r p r o s e c u t i o n . Zealand a l s o i n d i c a t e d t h a t h e r Delegation would n o t be a b l e t o support any system of p r e f e r e n c e between p r o s e c u t i o n and e x t r a d i t i o n o r any p r i o r i t y l i s t i n g of t h e S t a t e s e n t i t l e d t o e x e r c i s e j u r i s d i c t i o n .
5. The e x t e n s i o n of j u r i s d i c t i o n t o i n c l u d e t h e S t a t e of R e g i s t r a t i o n and t h e S t a t e of t h e o p e r a t o r of a i r c r a f t n o t i n s e r v i c e a t t h e a i r p o r t , i f such a i r c r a f t were included i n t h e p r o t o c o l , w a s favoured by t h e D e l e g a t i o n s of Canada, China, New Zealand, P a k i s t a n and t h e Union of S o v i e t S o c i a l i s t Republics. I n t h i s c o n t e x t , t h e Delegate of Canada agreed w i t h t h o s e D e l e g a t e s who considered t h a t t h e e x i s t i n g t e x t of A r t i c l e 5, sub-paragraph 1 c ) would as a r e s u l t no longer be a p p r o p r i a t e . The Delegates of t h e F e d e r a l Republic of Zealand, r e f e r r i n g t o t h e c o n s e q u e n t i a l need t o extend t h e Germany and Copyright International Civil Aviation Organization New
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scope of A r t i c l e 5, paragraph 2 - added t h e i r support bis, s u g g e s t i o n made t h e p r e v i o u s day by t h e D e l e g a t e of I t a l y .
to
the drafting
bis, 6. Commenting on t h e proposed wording of paragraph 2 - t h e D e l e g a t e of Co lomb i a suggest ed t h a t i t s r e f e r e n c e t o t h e S t a t e mentioned under paragraph 1 a ) b e modif i e d t o repeat t h e e x p r e s s i o n " S t a t e i n whose t e r r i t o r y The- D e l e g a t e of Belgium, however, c o n s i d e r e d t h e t h e o f f e n c e w a s committed". i n c l u s i o n of any r e f e r e n c e , i n c l u d i n g t h e one proposed i n t h e d r a f t , a s having t o o l i m i t i n g an e f f e c t . Prevent i v e measures 7. The D e l e g a t e of t h e Union of S o v i e t S o c i a l i s t Republics drew a t t e n t i o n t o h i s Delegation's p r o p o s a l ( V I A Doc No. 2 6 ) f o r i n c l u d i n g i n t h e t e x t of t h e new instrument a s e p a r a t e a r t i c l e c o n t a i n i n g more s p e c i f i c o b l i g a t i o n s f o r S t a t e s i n p r e v e n t i n g a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g internat ional c i v i l aviation. I n h i s view, t h e c u r r e n t p r o v i s i o n s of A r t i c l e 1 0 , paragraph 1 of t h e Montreal Convention were of t o o g e n e r a l a n a t u r e and d i d n o t o f f e r c l e a r guidance t o S t a t e s , w h i l e t h e more d e t a i l e d The recommendations of Annex 17 d i d n o t c a r r y t h e f o r c e of o b l i g a t i o n s . s p e c i f i c p r e v e n t i v e measures proposed by h i s D e l e g a t i o n included t h e p r e s e n c e of d u l y a u t h o r i z e d and t r a i n e d o f f i c e r s r e s p o n s i b l e f o r e n s u r i n g s e c u r i t y a t an a i r p o r t serving i n t e r n a t i o n a l c i v i l a v i a t i o n ; t h e holding of r e g u l a r i n s p e c t i o n s and continuous monitoring of a v i a t i o n s e c u r i t y measures by f o r c e s of n a t i o n a l b o d i e s of t h e S t a t e i n which t h e a i r p o r t was l o c a t e d ; and t h e e s t a b l i s h m e n t of r u l e s t o prevent t h e unauthorized a c c e s s t o t h e a i r s i d e and t o o t h e r a r e a s of v i t a l importance t o t h e o p e r a t i o n of t h e a i r p o r t .
8. While t h e D e l e g a t i o n s of Poland and t h e German Democratic Republic favoured t h e i n c l u s i o n of p r o v i s i o n s r e l a t e d t o p r e v e n t i v e measures, t h e m a j o r i t y was n o t convinced of t h e d e s i r a b i l i t y of i n c l u d i n g t h e s e , p r e f e r r i n g t o see t h e r e s p o n s i b i l i t y f o r p r e v e n t i v e measures remain w i t h i n i n d i v i d u a l States. S e v e r a l D e l e g a t e s expressed t h e view t h a t t h e s u b j e c t w a s a d e q u a t e l y covered by A r t i c l e 10 of t h e Montreal Convention, and t h a t s p e c i f i c t e c h n i c a l measures should remain w i t h i n t h e ambit of Annex 17 t o # t h e Convention on I n t e r n a t i o n a l C i v i l A v i a t i o n , t h e Standards of which, as was p o i n t e d o u t by t h e D e l e g a t e of Belgium, were more t h a n recommendatory i n n a t u r e and r e q u i r e d The D e l e g a t e of E t h i o p i a r e i t e r a t e d h i s adherence by I C A 0 C o n t r a c t i n g S t a t e s . concern w i t h r e s p e c t t o t h e implementation d i f f i c u l t i e s which mandatory p r o v i s i o n s would b r i n g about i n a number of S t a t e s , and emphasized t h e need f o r t e c h n i c a l a s s i s t a n c e t o b e provided i n t h i s a r e a . It was h i s hope t h a t t h e The Conference would produce a s t a t e m e n t o r r e s o l u t i o n t o t h i s e f f e c t . p o s s i b i l i t y of adopting a r e s o l u t i o n on t h e s u b j e c t of p r e v e n t i v e measures w a s a l s o commented upon f a v o u r a b l y by a m a j o r i t y of D e l e g a t i o n s .
P a r t i c i p a t i o n by S t a t e s n o t p a r t i e s t o t h e Montreal Convention
9. It w a s g e n e r a l l y agreed t h a t p a r t i c i p a t i o n i n t h e P r o t o c o l by t h e s e S t a t e s should b e l i n k e d w i t h r a t i f i c a t i o n of t h e Montreal Convention. A number of D e l e g a t i o n s c o n s i d e r e d t h a t s i n c e t h e two would b e r e a d and i n t e r p r e t e d as a s i n g l e i n s t r u m e n t , p a r t i c i p a t i o n i n t h e P r o t o c o l should a u t o m a t i c a l l y have t h e e f f e c t of p a r t i c i p a t i o n i n t h e Convention. S t a t e s n o t p a r t y t o t h e Convention Copyright International Civil Aviation Organization o r e wouldwith t h e r e f b e a b l e t o a d h e r e t o i t through r a t i f i c a t i o n of t h e P r o t o c o l . Provided by IHS under license ICAO
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The Delegate of t h e F e d e r a l Republic of Germany, however, p r e f e r r e d a r e f o r m u l a t i o n of A r t i c l e s V I and V I 1 1 which would r e q u i r e such S t a t e s t o d e p o s i t two s e p a r a t e i n s t r u m e n t s of a c c e s s i o n . The Delegate of Canada emphasized t h e importance of adopting a f o r m u l a t i o n which would n e i t h e r a f f e c t t h e r a t i f i c a t i o n p r o c e s s of t h e Convention i n a n e g a t i v e way, n o r d i s c o u r a g e S t a t e s from p a r t i c i p a t i n g i n t h e P r o t o c o l . A i r c r a f t not i n s e r v i c e a t t h e a i r p o r t 10. Although a m a j o r i t y of Delegations were i n favour of i n c l u d i n g t h i s bis, concept under paragraph 1 - sub-paragraph b ) , t h e Delegate of Finland s t a t e d t h a t he shared t o some e x t e n t t h e h e s i t a t i o n s expressed by t h e Delegate of Jamaica, and t h e Delegate of Mexico suggested an a l t e r n a t e wording which would avoid making r e f e r e n c e t o a i r c r a f t not i n s e r v i c e . The Delegate of Canada, w h i l e w i l l i n g t o a c c e p t t h e i n c l u s i o n of t h e t e r m , p o i n t e d o u t t h a t i t could b e i n t e r p r e t e d i n two ways: t o mean e i t h e r any a i r c r a f t l o c a t e d a t an a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n o t h e r t h a n an a i r c r a f t t o which t h e Montreal Convention would a p p l y , o r an a i r c r a f t t o which t h e Montreal Convention would apply, except t h a t such a i r c r a f t was beyond t h e time-frame set o u t by t h e Convention. H e suggested t h e D r a f t i n g Committee develop a t e x t which would c l e a r l y d e f i n e t h e term; t h i s s u g g e s t i o n was supported by t h e Delegates of Belgium, Finland and New Zealand. Paragraph 1 b i s When a d d r e s s i n g t h e q u e s t i o n of whether t h e t e x t of paragraph 1 bis should r e f e r t o p o s s i b l e methods employed by an o f f e n d e r , a number of Delegations expressed doubts on t h e i n c l u s i o n of t h e q u a l i f y i n g p h r a s e "using any d e v i c e , s u b s t a n c e o r weapon''. Although t h e Delegate of Canada i n d i c a t e d t h a t a more p r e c i s e f o r m u l a t i o n c o u l d n o t accommodate t h e d i f f e r e n t requirements o f - v a r i o u s l e g a l s y s t e m s , i t was t h e opinion of t h e Delegate of t h e Republic of Korea t h a t t h e proposed wording could have t h e e f f e c t of allowing f o r unlawful a c t s committed without t h e u s e of such means. T h i s view w a s shared by t h e Delegates of Ethiopia and Mexico, a s w e l l a s t h e Delegate of Colombia, who w a s i n favour of d e l e t i n g t h e p h r a s e i f a complete l i s t of a l l means used could n o t be i n c o r p o r a t e d i n t h e t e x t . A l i s t i n g of o f f e n c e s and means was s t r o n g l y o b j e c t e d t o by t h e Delegates of Finland and Spain, who considered such an enumeration a s p o t e n t i a l l y dangerous. The Delegation of New Zealand wished t o p l a c e on t h e record i t s support f o r t h o s e D e l e g a t i o n s which had c a l l e d f o r t h e a d d i t i o n of t h e words "or any o t h e r means" t o t h i s , p h r a s e .
11.
12. The s u b j e c t of whether o r n o t e x t e r n a l a i r n a v i g a t i o n f a c i l i t i e s should be included w i t h i n t h e scope of paragraph 1 - was commented on by a bis number of D e l e g a t e s . The Delegate of Spain, when d i s c u s s i n g t h e l e g a l i n t e r e s t s t o be p r o t e c t e d i n t h e a p p l i c a t i o n of j u r i s d i c t i o n , considered t h a t t h e p r o t e c t i o n o f a i r s e r v i c e s shu-ld be recognized a s t h e primary i n t e r e s t , and i n t h i s c o n t e x t h e advocated a f u n c t i o n a l approach which would i n c l u d e r a d i o n a v i g a t i o n a l a i d s and o t h e r f a c i l i t i e s e s s e n t i a l t o t h e s a f e t y of a i r traffic. The Delegate of Poland favoured t h e i n c l u s i o n of f a c i l i t i e s l o c a t e d o u t s i d e t h e a i r p o r t i n a d d i t i o n t o a i r c r a f t n o t i n s e r v i c e and communication of forced intervention. The Delegate of Colombia suggested an a l t e r n a t i v e t e x t f o r paragraph 1 - sub-paragraph b ) which would read " d e s t r o y s o r s e r i o u s l y bis, damages t h e f a c i l i t i e s o r s e r v i c e s of an a i r p o r t , " and which would d e l e t e t h e Copyright International Civil Aviation Organization
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r e f e r e n c e t o d i s r u p t i o n of s e r v i c e s i n t h e f i n a l p o r t i o n of t h i s sub-paragraph. T h i s re-wording was suggested i n o r d e r t o a l i g n t h e t e x t of t h e P r o t o c o l w i t h t h a t of t h e Convention, which d i f f e r e n t i a t e d between f a c i l i t i e s and s e r v i c e s , and a l s o t o r e f l e c t concerns expressed by D e l e g a t e s f o r t h e i n c l u s i o n of s e r v i c e s and f a c i l i t i e s p e r t i n e n t t o t h e a i r p o r t .
13. There was some d i s c u s s i o n on t h e q u e s t i o n of whether t h e concept of t h r e a t should be included i n t h e t e x t of t h e P r o t o c o l . Whereas t h e Delegates of Colombia, E t h i o p i a and Poland agreed t h a t t h e t h r e a t of an a c t of v i o l e n c e should be included s i n c e it could s e r i o u s l y d i s r u p t t h e s e r v i c e s of an a i r p o r t , t h e D e l e g a t e of t h e F e d e r a l Republic of Germany expressed h e s i t a t i o n o v e r t h e i n c l u s i o n of a t e r m which he considered n o t s u f f i c i e n t l y p r e c i s e and covering The D e l e g a t e of Mexico d i d n o t see t h e need t o o broad a scope t o b e p r a c t i c a l . t o e x p l i c i t l y r e f e r t o t h r e a t , s i n c e i t was i m p l i c i t l y included a s an o f f e n c e l e a d i n g t o t h e s e r i o u s d i s r u p t i o n of a i r p o r t s e r v i c e s . The D e l e g a t e of F i n l a n d drew a t t e n t i o n t o t h e importance of m a i n t a i n i n g a d i s t i n c t i o n between t h o s e o f f e n c e s t o b e included i n t h e p r o t o c o l and o f f e n c e s t o b e l e f t t o domestic leg is l a t ion.
14. The D e l e g a t e of Finland r e f e r r e d t o h i s D e l e g a t i o n ' s p r o p o s a l p r e s e n t e d a t t h e 26th S e s s i o n of t h e Legal Committee t o f u r t h e r q u a l i f y t h e t e r m "airport serving international c i v i l aviation," appearing i n bis, paragraph 1 - i n o r d e r t o l i m i t t h e a p p l i c a t i o n of t h e new instrument t o t h e o p e r a t i o n s and u s e s of i n t e r n a t i o n a l c i v i l a v i a t i o n . In t h i s respect, h i s D e l e g a t i o n was now w i l l i n g t o concede t o t h e m a j o r i t y o p i n i o n t h a t t h e p r e s e n t wording s u f f i c i e n t l y covered t h e concept.
15. A number of D e l e g a t i o n s were a l s o i n f a v o u r of t h e d e l e t i o n of t h e q u a l i f y i n g p h r a s e which read " i f such an a c t endangers o r i s l i k e l y t o endanger While t h e D e l e g a t e of Colombia wished t o see t h e safety a t that airport." e x p r e s s i o n "or i s l i k e l y t o endanger" omitted because of i t s s u b j e c t i v e n a t u r e , t h e D e l e g a t e of E t h i o p i a viewed t h e p h r a s e a s redundant t o t h e s u b s t a n c e of bis paragraph 1 - and t h e D e l e g a t e of t h e Republic of Korea proposed i t s d e l e t i o n i n t h e i n t e r e s t of c l a r i t y . The Delegate of t h e F e d e r a l Republic of Germany expressed p r e f e r e n c e f o r what h e considered t o b e t h e more p r e c i s e wording suggested t h e p r e v i o u s day by t h e Delegate of I t a l y .
When a d d r e s s i n g t h e q u e s t i o n r a i s e d a t e a r l i e r meetings of whether i n t e n t should b e considered t h e determining f a c t o r , t h e D e l e g a t e s of Canada, Finland and P a k i s t a n maintained t h a t t h e consequences of a p a r t i c u l a r a c t should be t h e o n l y c o n s i d e r a t i o n , and t h a t t h e concept of i n t e n t should b e l i m i t e d t o t h e i n t e n t i o n n e c e s s a r y t o commit t h e o f f e n c e a s provided i n t h e The D e l e g a t e of -Canada f u r t h e r i n t r o d u c t o r y words of paragraph -1 i n d i c a t e d t h a t t h e i n t r o d u c t i o n of i n t e n t i o n w i t h r e s p e c t t o t h e consequences on s a f e t y a t an a i r p o r t would n o t o n l y i n v o l v e motive, a concept n o t a p p r o p r i a t e t o the Montreal Convention, b u t would a l s o o b l i g e p r o s e c u t i n g a u t h o r i t i e s t o prove double i n t e n t i o n .
16.
17. The Chairman suspended f u r t h e r d i s c u s s i o n of Commission of t h e Whole t o t h e a f t e r n o o n meeting. (The meeting adjourned a t 1230 hours )
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e.
these
i s s u e s by
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DRAFT F i f t h Meeting Commission of t h e Whole
FIFTH MEETING O THE COMMISSION OF THE WHOLE F ( F r i d a y , 1 2 February 1988, a t 1400 h o u r s )
Chairman: M r . P. K i r s c h
AGENDA ITEM 9:
1. The Commission of t h e Whole completed i t s d i s c u s s i o n of t h e i s s u e s on which Delegations had been i n v i t e d t o express t h e i r views.
Form of t h e new instrument
2. The Delegates of Ecuador and Costa Rica i n d i c a t e d t h e i r agreement w i t h t h e form which t h e new instrument would t a k e , a s a p r o t o c o l supplementary t o t h e Montreal Convention. The Delegate of Ecuador f u r t h e r considered t h a t t h e P r o t o c o l should o n l y apply when an i n d i v i d u a l who had committed an o f f e n c e was p r e s e n t i n a S t a t e o t h e r t h a n t h e S t a t e i n which t h e o f f e n c e took p l a c e .
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3. The Delegates of Ecuador and Costa Rica added t h e i r support t o t h e g e n e r a l o p i n i o n t h a t t h e b a l a n c e b e t w e e n e x t r a d i t i o n and p r o s e c u t i o n requirements i n t h e Montreal Convention should be r e s p e c t e d . The Delegate of I n d i a , r e c a l l i n g t h e d i s c u s s i o n of t h i s i s s u e a t t h e 26th S e s s i o n of t h e Legal Committee i n which h i s D e l e g a t i o n had made c e r t a i n concessions i n t h e i n t e r e s t of m a i n t a i n i n g t h i s b a l a n c e , considered t h e proposed t e x t f o r A r t i c l e III of t h e P r o t o c o l t o be s a t i s f a c t o r y . Commenting a l s o on t h e p r o p o s a l s f o r extending t h e scope of j u r i s d i c t i o n t o i n c l u d e t h e S t a t e of R e g i s t r a t i o n and t h e S t a t e of t h e o p e r a t o r of a i r c r a f t n o t i n s e r v i c e a t t h e a i r p o r t , t h e Delegate of I n d i a expressed some h e s i t a t i o n over t h e adoption of p r o v i s i o n s which would allow f o r c o n c u r r e n t j u r i s d i c t i o n s by a number of S t a t e s . The Delegate of A r g e n t i n a , e l a b o r a t i n g on t h e n a t u r e of t h e term " j u r i s d i c t i o n " and i t s a p p l i c a t i o n i n t h e P r o t o c o l , o u t l i n e d t h e advantages and d i s a d v a n t a g e s a s s o c i a t e d w i t h t h e e s t a b l i s h m e n t of e i t h e r m u l t i p l e o r s i n g l e j u r i s d i c t i o n , and s t a t e d h i s D e l e g a t i o n ' s support f o r t h e f o r m u l a t i o n proposed i n A r t i c l e III of t h e d r a f t P r o t o c o l .
Prevent i v e measures 4. The D e l e g a t e of Ecuador considered i t d e s i r a b l e f o r t h e Conference t o The f o r m u l a t e a Recommendation f o r t h e adoption of such measures by S t a t e s . Delegate of Costa Rica, w h i l e of t h e opinion t h a t t h i s s u b j e c t w a s a d e q u a t e l y covered i n A r t i c l e 10 of t h e Montreal Convention, a l s o supported t h e adoption of a R e s o l u t i o n which would emphasize t h e importance of implementing p r e v e n t i v e measures.
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P a r t i c i p a t i o n by S t a t e s n o t p a r t i e s t o t h e Montreal Convention
A i r c r a f t not i n s e r v i c e a t t h e a i m o r t
6. The Delegates of Ecuador and Costa Rica both supported t h e i n c l u s i o n of t h e concept of a i r c r a f t n o t i n s e r v i c e i n t h e p r o v i s i o n s of paragraph 1 bis; t h e Delegate of Ecuador a l s o favoured t h e i n c l u s i o n of f a c i l i t i e s l o c a t e d outside the airport. The D e l e g a t e of Japan c o n s i d e r e d t h a t t h e i n c l u s i o n of a i r c r a f t n o t i n s e r v i c e would n e c e s s i t a t e t h e amendment of A r t i c l e 4, paragraphs 3 and 4 i n t h e Convention t o e n s u r e c o m p a t i b i l i t y w i t h i t s P r o t o c o l .
ParanraDh 1 b i s
7. When a d d r e s s i n g t h e q u e s t i o n of whether r e f e r e n c e should b e made i n bis paragraph 1 - t o p o s s i b l e methods employed by a n o f f e n d e r , t h e Delegates of Ecuador and Costa Rica agreed w i t h t h o s e D e l e g a t i o n s which had o b j e c t e d t o any l i s t i n g of p o s s i b l e o f f e n c e s and means. The D e l e g a t e of I t a l y , r e f e r r i n g t o t h e d i f f i c u l t i e s expressed by Delegations on t h e i n c l u s i o n of t h e q u a l i f y i n g p h r a s e "using any d e v i c e , s u b s t a n c e o r weapon", supported t h e s u g g e s t i o n made t o i n c l u d e t h e words "or any o t h e r means" a s a way t o a l l e v i a t e t h e s e difficulties. The D e l e g a t e of I t a l y a l s o commented on t h e h e s i t a t i o n s expressed by t h e Delegation of France concerning t h e u s e of t h e word " d i s r u p t s " i n sub-paragraph b ) . While t h e Delegation of I t a l y was n o t i n f a v o u r of t h e suggested a l t e r n a t i v e " i n t e r r u p t ," a term which i t i n t e r p r e t e d t o mean a complete break i n s e r v i c e s , a l e s s a b s o l u t e " i n t e r r u p t s i n whole o r i n p a r t " W u Id b e a c c e p t ab 1e. o
8. The p r o p o s a l t o i n c l u d e a d e f i n i t i o n of " a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n " w a s r e f e r r e d t o by t h e D e l e g a t e of Ecuador, who d i d n o t c o n s i d e r such an i n c l u s i o n a d v i s a b l e f o r t h e t i m e being i n view of t h e d i f f i c u l t i e s involved i n covering a l l p o s s i b l e elements w i t h i n a s i n g l e definition. The D e l e g a t e of I t a l y a l s o p r e f e r r e d t o s e e t h e term remain without f u r t h e r s p e c i f i c a t i o n .
9. Turning t o t h e i s s u e of whether t h r e a t should be i n c o r p o r a t e d i n t h e P r o t o c o l , t h e Delegate of Ecuador favoured t h e i n c l u s i o n of t h i s concept a s a s e p a r a t e o f f e n c e d i s t i n c t from t h e attempt t o commit a n unlawful a c t . The
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5. The Delegate of 'Ecuador agreed t h a t p a r t i c i p a t i o n i n t h e P r o t o c o l should i m p l y r a t i f i c a t i o n of t h e Montreal Convention, and suggested a f o r m u l a t i o n s i m i l a r t o t h a t e s t a b l i s h e d i n A r t i c l e XXIII of The Hague P r o t o c o l The Delegate of Costa Rica wished t o be t o t h e Warsaw Convention of 1929. a s s o c i a t e d w i t h t h e view t h a t r a t i f i c a t i o n of t h e P r o t o c o l by S t a t e s n o t p a r t y t o t h e Convention should imply automatic adherence t o t h a t Convention. The Delegate of I t a l y p r e f e r r e d a f o r m u l a t i o n which would r e q u i r e S t a t e s n o t p a r t y t o t h e Convention t o d e p o s i t two s e p a r a t e i n s t r u m e n t s of a c c e s s i o n , and suggested an a l t e r n a t i v e t e x t f o r t h e second paragraph of A r t i c l e V I which would read: " R a t i f i c a t i o n of t h i s P r o t o c o l by any S t a t e which i s n o t a P a r t y t o t h e Convention s h a l l n o t have any e f f e c t u n l e s s t h e r a t i f y i n g S t a t e a l s o accedes t o t h e Convention." A similar m o d i f i c a t i o n would a p p l y t o t h e second paragraph of A r t i c l e V I I I .
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DRAFT
F i f t h Meeting Commission of t h e Whole
Delegate of Japan, however, i n d i c a t e d t h a t t h e r e were no p r o v i s i o n s covering t h r e a t i n t h e Montreal Convention, and maintained t h a t w h i l e t h e p r o v i s i o n s of bis, paragraph 1 - sub-paragraph b ) would apply t o t h o s e t h r e a t s which d i s r u p t e d t h e s e r v i c e s of an a i r p o r t , o t h e r a c t s of t h r e a t d i d n o t need t o be covered i n t h e Protocol.
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10. R e f e r r i n g t o o t h e r i t e m s , t h e Delegate of Japan commented on t h e s u g g e s t i o n t h a t t e r r o r i s t a c t i v i t i e s be r e f e r r e d t o i n t h e t e x t of t h e preamble. I n t h i s r e s p e c t , t h e Delegation of Japan d i d n o t c o n s i d e r t h e term "terrorism", with i t s various implications, t o be appropriate t o t h e Protocol.
11. The Delegate of I t a l y queried what appeared t o be a d r a f t i n g i n c o n s i s t e n c v between t h e t i t l e of t h e instrument which read "Draft P r o t o c o l t o Amend t h e Convention ...I1 and t h e t h i r d preambular c l a u s e which s t a t e d "Considering t h a t it i s n e c e s s a r y t o adopt p r o v i s i o n s a d d i t i o n a l t o t h o s e of and f u r t h e r noted t h a t t h e r e f e r e n c e , under A r t i c l e II of t h e Convention . . . I ' ; t h e P r o t o c o l , t o paragraph 2 ( a ) of t h e Convention should s p e c i f y t h a t t h i s paragraph w a s l o c a t e d under A r t i c l e 1. The Delegate of I t a l y a l s o suggested t h e d e l e t i o n of A r t i c l e I X , which r e f e r r e d t o d e n u n c i a t i o n of t h e P r o t o c o l , and which d i d n o t appear c o n s i s t e n t w i t h t h e n a t u r e of t h e Convention and i t s P r o t o c o l a s being a s i n g l e i n s t r u m e n t .
12. There were no f u r t h e r speakers wishing t o comment on t h e items under discussion. The Chairman, i n summarizing t h e main p o i n t s which had emerged from t h i s d e b a t e , i n d i c a t e d t h a t t h e m a t t e r s d i s c u s s e d by t h e Commission of t h e Whole could be d i v i d e d i n t o t h r e e c a t e g o r i e s , each r e q u i r i n g a d i f f e r e n t approach.
13. The f i r s t c a t e g o r y o u t l i n e d by t h e Chairman comprised f o u r items on which an a c c e p t a b l e l e v e l of agreement had been reached, and f o r which d r a f t i n g of f i n a l p r o v i s i o n s could commence. These items included t h e form which t h e instrument should t a k e , as a P r o t o c o l supplementary t o t h e Convention; t h e l i n k i n g of p a r t i c i p a t i o n i n t h e P r o t o c o l w i t h r a t i f i c a t i o n of t h e Convention i t s e l f ; t h e agreement t o n o t i n c l u d e a d e f i n i t i o n of an a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n ; and t h e i n c l u s i o n of a i r c r a f t n o t i n s e r v i c e i n The second c a t e g o r y , r e q u i r i n g d e t a i l e d t h e p r o v i s i o n s of paragraph 1 examination and some d r a f t i n g work, included t h e t i t l e , preamble and f i n a l p r o v i s i o n s of t h e P r o t o c o l . The t h i r d c a t e g o r y , whose items r e q u i r e d f u r t h e r d i s c u s s i o n by t h e Commission of t h e Whole, included j u r i s d i c t i o n and bis, e x t r a d i t i o n ; p r e v e n t i v e measures; and c e r t a i n p a r t s of paragraph 1 - i n p a r t i c u l a - r t h e q u e s t i o n of t h e i n t e n t of t h e o f f e n d e r t o d i s r u p t s e r v i c e s o r endanger s a f e t y of t h e a i r p o r t . O t h i s l a s t item, t h e Chairman reminded n Delegations of t h e work a l r e a d y done by t h e Legal Committee i n t h e development of t h e proposed paragraph 1 - t h e t e x t of which r e f l e c t e d c o n s i d e r a b l e bis, e f f o r t s t o r e a c h a compromise.
a.
14. The Chairman t h e n informed t h e Commission of h i s i n t e n t i o n t o e s t a b l i s h a D r a f t i n g Committee which would commence work on t h e f i n a l provisions. The Commission of t h e Whole would a d d r e s s t h e t h r e e remaining bis items on i t s work programme, beginning with paragraph 1 - and t h e i s s u e of i n t e n t ; followed by j u r i s d i c t i o n and e x t r a d i t i o n ; and l a s t l y p r e v e n t i v e
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measures. H e r e q u e s t e d t h e Executive S e c r e t a r y t o read t h e l i s t of D e l e g a t i o n s which were being proposed f o r nomination t o t h e D r a f t i n g Committee, following c o n s u l t a t i o n s between t h e P r e s i d e n t and Vice-presidents of t h e Conference and w i t h t h e co-operation of t h e P r e s i d e n t of t h e I C A 0 Council and members of i t s Secretariat. The l i s t , t o b e approved by t h e Conference i n accordance w i t h Rule 5 of t h e Rules of Procedure (VIA Doc No. 2 ) , comprised twenty-two S t a t e s which i n c l u d e d , i n E n g l i s h a l p h a b e t i c a l o r d e r , A r g e n t i n a , A u s t r i a , B u l g a r i a , China, Egypt, F e d e r a l Republic of Germany, France, I n d i a , I s l a m i c Republic of I r a n , Jamaica, Japan, Kingdom of t h e Netherlands, Norway, P e r u , Senegal, Spain, Tanzania, T u n i s i a , Union of S o v i e t S o c i a l i s t Republics, United Kingdom, United S t a t e s and Venezuela.
15. Before adjourning t h e meeting, t h e Chairman asked D e l e g a t i o n s i f I n response t o a t h e r e were any q u e s t i o n s on t h e proposed programme of work. q u e s t i o n r a i s e d by t h e D e l e g a t e of Niger concerning a p r o p o s a l made by h i s D e l e g a t i o n f o r t h e French t e x t of paragraph 1 a s w e l l as a r e q u e s t f o r c l a r i f i c a t i o n from t h e D e l e g a t e of t h e I s l a m i c Republic of I r a n on ICAOs r o l e as a d e p o s i t a r y organ of t h e P r o t o c o l , t h e Chairman i n d i c a t e d t h a t t h e s e m a t t e r s would b e d e a l t w i t h i n t h e D r a f t i n g Committee. The meeting was t h e n adjourned i n o r d e r t o convene t h e f i f t h meeting of t h e P l e n a r y .
e,
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DRAFT S i x t h P l e n a r y Meet in&
SIXTH PLENARY MEETING

( F r i d a y , 12 February 1988, a t 1545 h o u r s )
Establishment of a D r a f t i n g Committee
1. A t t h e i n v i t a t i o n of t h e P r e s i d e n t , t h e Executive S e c r e t a r y read t h e . l i s t of Delegations proposed f o r t h e e s t a b l i s h m e n t of a D r a f t i n g Committee which would begin working on t h e f i n a l p r o v i s i o n s of t h e p r o t o c o l . The l i s t comprised twenty-two S t a t e s which included, i n E n g l i s h a l p h a b e t i c a l o r d e r , Argentina, A u s t r i a , B u l g a r i a , China, Egypt, F e d e r a l Republic of Germany, France, I n d i a , I r a n , Jamaica, Japan, Kingdom of t h e Netherlands, Norway, Peru, Senegal, S p a i n , Tanzania, T u n i s i a , Union of S o v i e t S o c i a l i s t Republics, United Kingdom, United S t a t e s and Venezuela.
2. The D e l e g a t e of t h e Union of S o v i e t S o c i a l i s t Republics, w h i l e expressing agreement w i t h t h e p r o p o s a l f o r a d r a f t i n g committee a s w e l l as w i t h i t s composition, r e q u e s t e d c l a r i f i c a t i o n on t h e f a c t o r s which had been t a k e n i n t o account i n s e l e c t i n g S t a t e s f o r t h e group. The P r e s i d e n t r e p l i e d t h a t t h e l i s t of Delegations proposed f o r t h e D r a f t i n g Committee had been e s t a b l i s h e d t a k i n g i n t o account s e v e r a l f a c t o r s , i n c l u d i n g t h o s e of language and geographic The D r a f t i n g Committee, t h u s r e g i o n , as w e l l as e x t e n s i v e c o n s u l t a t i o n s . e s t a b l i s h e d , was c a l l e d upon by t h e P r e s i d e n t t o hold i t s f i r s t meeting immediately a f t e r t h e p l e n a r y meeting t o d i s c u s s t h e o r g a n i z a t i o n of i t s work.
General Statement bv t h e D e l e e a t i o n of t h e Democratic PeoDles Republic of Korea
3. The Delegate of t h e Democratic Peoples Republic of Korea, whose Delegation had been u n a b l e t o p a r t i c i p a t e i n t h e g e n e r a l d e b a t e of e a r l i e r p l e n a r y meetings, c o n g r a t u l a t e d t h e P r e s i d e n t and Vice-presidents on t h e i r e lec t ion H i s Delegation had come t o t h e Conference i n a s p i r i t of co-operation and hoped t o p a r t i c i p a t e a c t i v e l y i n i t s work, and i n t h i s r e s p e c t would b e prepared t o s i g n t h e instrument under c o n s i d e r a t i o n a t t h e c o n c l u s i o n of t h e Conference. Making r e f e r e n c e t o t h e s u b j e c t of p r e v e n t i v e measures, he emphasized t h e importance of implementing such measures and of e l i m i n a t i n g t h e c a u s e s o f u n l a w f u l a c t s a t i n t e r n a t i o n a l a i r p o r t s , s i n c e i t was h i s Delegations view t h a t t h e d r a f t instrument should i n c l u d e s p e c i f i c o b l i g a t i o n s f o r S t a t e s i n t h i s area.
The D e l e g a t e of t h e Democratic Peoples Republic of Korea t h e n expressed h i s Delegat ions g r e a t dismay w i t h comments made d u r i n g t h e g e n e r a l d i s c u s s i o n by t h e Delegation of t h e Republic of Korea on t h e s u b j e c t of an i n c i d e n t i n v o l v i n g Korean A i r F l i g h t 858 on 29 November 1987. While h e d i d n o t b e l i e v e t h a t t h i s s u b j e c t w a s a p p r o p r i a t e f o r d i s c u s s i o n a t t h e Conference, h e
4 .
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d i d wish t o r e f u t e t h e a l l e g a t i o n s made by t h e Delegation of t h e Republic of Korea w i t h r e s p e c t t o h i s S t a t e s involvement i n t h e i n c i d e n t . H e s a i d t h a t a s f o r t h e KAL i n c i d e n t h i s Government had a l r e a d y r e j e c t e d t h e r e s u l t s of i n v e s t i g a t i o n made p u b l i c by t h e South Korean r u l e r s a s a f a b r i c a t i o n f u l l of l i e s , d e c e p t i o n and c o n t r a d i c t i o n . Maintaining t h a t no m a t e r i a l evidence had t o d a t e been produced t o s u p p o r t t h e s e a l l e g a t i o n s , t h e D e l e g a t e of t h e Democratic Peoples Republic of Korea s t a t e d t h a t i n t h e absence of wreckage or f l i g h t r e c o r d e r s , any claims made by t h e Republic of Korea would remain unsubstantiated. He s t r o n g l y q u e s t i o n e d t h e accuracy of a number of d e t a i l s given by t h e Republic of Korea, i n c l u d i n g t h o s e r e l a t e d t o t h e s i t e of t h e i n c i d e n t , t h e i d e n t i t i e s and r o l e s of t h e a l l e g e d o f f e n d e r s , and t h e means by which t h e a l l e g e d o f f e n c e had been committed. The Delegate of t h e Democratic Peoples Republic of Korea s a i d t h a t t h e propaganda department of t h e C e n t r a l Committee of t h e N a t i o n a l Democratic Front of South Korea had branded t h e KAL i n c i d e n t a s a s e l f - m a d e drama of t h e gang of Chon Doo Hwan and Roh Tae Woo and d i s c l o s e d t h e t r u e c o l o u r of i t on t h e b a s i s of r e l i a b l e information o b t a i n e d by t h e o r g a n i z a t i o n .
5. The Delegate of t h e Republic of Korea i n t e r v e n e d on a p o i n t of o r d e r and o b j e c t e d t o t h e d i s c u s s i o n of an i s s u e which i n h i s D e l e g a t i o n s view was n o t on t h e agenda of t h e Conference.
6. Following a request: from t h e P r e s i d e n t t o resume h i s g e n e r a l s t a t e m e n t on t h e understanding t h a t he c o n f i n e i t t o t h e agenda of t h e Conference, t h e D e l e g a t e of t h e Democratic Peoples Republic of Korea p o i n t e d o u t t h a t r e f e r e n c e t o t h e Korean A i r F l i g h t 858 i n c i d e n t had f i r s t been made by t h e D e l e g a t i o n of t h e Republic of Korea d u r i n g t h e g e n e r a l d i s c u s s i o n , and t h a t h i s D e l e g a t i o n was now o b l i g e d t o e x e r c i s e t h e r i g h t of r e p l y . He then f u r t h e r e l a b o r a t e d t h a t t h e South Korean h a b i t u a l l i a r s had a d v e r t i s e d as h i s Governments deeds t h e K i m Dae Jung kidnap c a s e , t h e August 1 5 t h s h o o t i n g i n c i d e n t of t h e former d i c t a t o r , t h e explosion a t t h e Kimpo A i r p o r t and t h e kidnap o p e r a t i o n of a s e c r e t a r y of t h e South Korean Embassy i n Lebanon. He t h e n s t a r t e d t o e l a b o r a t e on h i s own D e l e g a t i o n s i n t e r p r e t a t i o n of t h e i n c i d e n t a s i t r e l a t e d t o p a s t c o n f l i c t s between t h e two S t a t e s .
7. A second p o i n t of o r d e r was r a i s e d by t h e D e l e g a t e of C h i l e who s t a t e d t h a t s i n c e t h e r i g h t of r e p l y had now been d u l y e x e r c i s e d by t h e Delegation of t h e Democratic Peoples Republic of Korea, i t was h i s o p i n i o n t h a t Rule 10 of t h e Conferences Rules of Procedure i n V I A Doc No. 2 should b e a p p l i e d . The P r e s i d e n t accepted t h i s p o i n t of o r d e r and i n s i s t e d t h a t f u r t h e r remarks b e r e s t r i c t e d t o t h e s u b j e c t a t hand.
8. The Delegate of t h e Democratic Peoples Republic of Korea concluded h i s g e n e r a l s t a t e m e n t by emphasizing t h e need f o r a c l a r i f i c a t i o n of t h e c a u s e s behind t h e Korean A i r F l i g h t 858 i n c i d e n t b e f o r e t h e i s s u e was d i s c u s s e d any further. It was h i s D e l e g a t i o n s view t h a t t h e i n t e r n a t i o n a l community should condemn a l l a c t s of t e r r o r i s m as w e l l as any e f f o r t s made t o s h i f t t h e r e s p o n s i b i l i t y f o r such a c t s on o t h e r s .
I n r e s p o n s e t o t h e s t a t e m e n t made by t h e D e l e g a t i o n of t h e Democratic Peoples Republic of Korea, The Delegate of t h e Republic of Korea wished t o defend t h e s t a t e m e n t made e a r l i e r by h i s Delegation on t h e s u b j e c t of t h e Korean A i r F l i g h t 858 i n c i d e n t .
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9.
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DRAFT S i x t h P l e n a r y Meeting
10. The D e l e g a t e of B u l g a r i a intervened w i t h a t h i r d p o i n t of o r d e r . He wished t o a s s o c i a t e himself w i t h t h e p o i n t of o r d e r r a i s e d e a r l i e r by t h e Delegate of C h i l e , and appealed t o t h e P r e s i d e n t t o m a i n t a i n h i s r u l i n g .
11.
The P r e s i d e n t adjourned t h e meeting. (The meeting adjourned a t 1558 h o u r s )
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DRAFT
S i x t h Meeting Commission of t h e Whole
SIXTH MEETING O THE COMMISSION O THE WHOLE F F (Monday, 1 5 February 1988, a t 1000 h o u r s )
Chairman:
M r . P. K i r s c h
P r i o r t o resuming d i s c u s s i o n on t h e Commission's work, t h e Chairman i n v i t e d members of t h e C r e d e n t i a l s Committee t o make t h e i r r e p o r t as soon a s possible. The Czechoslovak Delegation had a l s o requested membership i n t h e D r a f t i n g Committee; t h e r e were no o b j e c t i o n s .
1.
2. The Chairman o u t l i n e d t h e t h r e e items which were t o b e d i s c u s s e d i n t h e Commission of t h e Whole a s agreed upon a t F r i d a y ' s meeting. These were:
l a s t l i n e of paragraph 1 - of t h e d r a f t P r o t o c o l bis q u e s t ions r e g a r d i n g j u r i s d i c t i o n and e x t r a d i t i o n p r e v e n t i v e measures
3. The Chairman summarized t h e d i s c u s s i o n s on paragraph 1 from t h e previous s e s s i o n , n o t i n g i n p a r t i c u l a r t h e new element r a i s e d i n r e s p e c t of t h e l a s t l i n e , i . e . whether o r n o t i t , w a s n e c e s s a r y t o c o n s i d e r , as an e s s e n t i a l element i n t h e d e f i n i t i o n of t h e o f f e n c e , t h e i n t e n t of t h e o f f e n d e r t o endanger s a f e t y a t t h e a i r p o r t . Realizing t h e d i f f i c u l t y i n discussing t h i s c l a u s e i n i s o l a t i o n , t h e Chairman i n v i t e d r e m a r k s on t h e whole o f paragraph 1 bis b u t asked t h a t comments b e d i r e c t e d p a r t i c u l a r l y t o t h e l a s t line. Three b a s i c p r o p o s a l s ( i . e . d e l e t i o n , amendment o r p r e s e r v a t i o n of e x i s t i n g t e x t ) had a l r e a d y been introduced. The f l o o r was t h e n opened f o r comments.
4. The D e l e g a t e of t h e United Kingdom s t r e s s e d t h e importance of having a s u i t a b l e q u a l i f i e r , t h e absence of which, i t was f e l t , would endanger acceptance and r a t i f i c a t i o n by many S t a t e s . A s t h e e x i s t i n g q u a l i f i e r was
considered t o o wide, two p o s s i b i l i t i e s were suggested. The D r a f t i n g Committee could p r e p a r e a paragraph f o r t h e Preamble s t a t i n g t h a t t h e primary purpose of t h e Instrument was t o d e a l w i t h t e r r o r i s m . It could a l s o a t t e m p t t o improve t h e e x i s t i n g q u a l i f i e r t a k i n g , as t h e c r i t e r i o n , t h e a c t u a l consequences of t h e a c t , (emphasizing t h e causing of t e r r o r o r alarm among t h e p u b l i c ) r a t h e r t h a n t h e i n t e n t i o n of t h e a c t .
bis
5. The D e l e g a t e of Argentina supported t h e p r o p o s a l made by t h e United Kingdom Delegation i n VIA Doc No. 24, p a r t i c u l a r l y t h e suggested paragraph on page 2 which r e f e r r e d t o t h e i n t e n t of t h e o f f e n d e r and t h e consequences of h i s a c t of v i o l e n c e as w e l l a s providing a d e f i n i t i o n of t h e a i r p o r t . H e agreed w i t h t h e e x i s t i n g t e x t of paragraph 1 b i s , b u t wished t h e r e p o r t t o r e f l e c t h i s A s he f e l t t h a t t h e p r i n c i p a l g o a l of t h e views on t h e a c t of v i o l e n c e . o f f e n d e r was t o produce an e f f e c t of f e a r , t h e r e was a need t o i n c l u d e t h e i n t e n t of t h e o f f e n d e r and h e b e l i e v e d t h a t t h e s u b j e c t i v e a s p e c t of t h e a c t of v i o l e n c e should be more p r e c i s e l y formulated. The D e l e g a t e s t r e s s e d t h a t , t h u s f a r , no d e f i n i t i o n had been g i v e n f o r "an a c t of v i o l e n c e " n o r c l a r i f i c a t i o n on
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t h e scope of t h e o f f e n c e and b e l i e v e d t h a t t h i s would d i f f i c u l t i e s i n i n t e r p r e t a t i o n f o r a l l Contracting S t a t e s .
eventually
cause
6. The D e l e g a t e of C h i l e agreed t h a t t h e wording of paragraph 1 - i n bis i t s p r e s e n t f o r m u l a t i o n was t h e most a p p r o p r i a t e . H e b e l i e v e d t h a t t h e element The fundamental element was t h e f a c t t h a t of i n t e n t w a s b a s i c and e s s e n t i a l . i t endangered o r was l i k e l y t o endanger s a f e t y a t an a i r p o r t s e r v i n g
i n t e r n a t i o n a l c i v i l a v i a t i o n ; f o r t h i s reason C h i l e p r e v i o u s l y had proposed adding t h e word " t h r e a t " t o c o m i t t h e s e o f f e n c e s . T h e r e f o r e , a t t h e Legal Committee, C h i l e had n o t seen t h e need f o r an enumeration of means used t o commit t h e o f f e n c e .
7. As in. the. c a s e of Czechoslovakia, C h i l e asked t o b e included i n t h e D r a f t i n g Committee. There were no o b j e c t i o n s .

The D e l e g a t e of Venezuela supported e x i s t i n g paragraph 1 bis. He 8. expressed g r e a t i n t e r e s t i n VIA Doc No. 24 as he a l s o f e l t t h a t t h e , i n c o r p o r a t i o n of i n t e n t w a s e s s e n t i a l . However, he d i d n o t a g r e e w i t h d e f i n i n g an a i r p o r t as i t had been Venezuela's understanding t h a t t h e r e was no n e c e s s i t y f o r t h a t i n t h i s P r o t o c o l . The Chairman r e a f f i r m e d t h i s p o i n t .
9. The D e l e g a t e of Venezuela proposed t h a t t h e q u a l i f i e r could b e c l a r i f i e d t o r e f e r t o i n t e n t even though t h i s was r e f l e c t e d i n t h e i n t r o d u c t i o n t o paragraph 1 - and suggested d e l e t i o n of t h e p h r a s e "or i s l i k e l y t o bis As t h e o f f e n c e s endanger" (as was submitted by Peru a t an e a r l i e r m e e t i n g ) . must be s e r i o u s and of s u c h a n a t u r e t o j u s t i f y i n t e r n a t i o n a l j u r i s d i c t i o n , Venezuela could not s u p p o r t i n c l u s i o n o f t h e word " t h r e a t " .
10. The D e l e g a t e of Greece supported paragraph 1 - e l a b o r a t i n g t h a t i t bis a d e q u a t e l y focused on f o u r main elements which would q u a l i f y t h e a c t s as i n t e r n a t i o n a l i n c h a r a c t e r and t h u s p r o h i b i t undue e x t e n s i o n of t h e scope of the article:
- t h e a c t must b e performed a t a n a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l aviation - t h e a c t must i n f a c t o r p o t e n t i a l l y c a u s e e i t h e r s e r i o u s i n j u r y o r

d e a t h t o persons o r d e s t r u c t i o n of o r damage t o f a c i l i t i e s a t t h e airport t h e a c t must b e unlawful and i n t e n t i o n a l t h e a c t must endanger, o r b e o f such a n a t u r e as t o endanger, safety at the airport.
11. The f i n a l element was viewed as t h e most important. The D e l e g a t e of Greece considered t h a t t h e element o f i n t e n t i o n was a l r e a d y included in t h e e x p r e s s i o n "unlawfully and i n t e n t i o n a l l y " and adding a double i n t e n t o r t h e c a u s e of t e r r o r as a d d i t i o n a l c r i t e r i a would c r e a t e d i f f i c u l t i e s .
12. The D e l e g a t e of Madagascar s t a t e d t h a t , a l t h o u g h a g e n e r a l consensus had been reached on t h e d e f i n i t i o n o f a c t s of v i o l e n c e i n r e l a t i o n t o t h i s P r o t o c o l , an a c c e p t a b l e c r i t e r i o n t o i d e n t i f y t h o s e which f e l l under t h e scope of t h e Instrument and t h o s e which f e l l under t h e s o v e r e i g n t y of t h e S t a t e of H e pointed o u t t h a t t h i s c r i t e r i o n could n o t be o c c u r r e n c e was s t i l l l a c k i n g .
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DRAFT S i x t h Meet ing Commission of t h e Whole
based on t h e n a t i o n a l i t y of o f f e n d e r o r v i c t i m o r p l a c e of occurrence; n o r s o l e l y on t h e consequences of t h e a c t . P r e m e d i t a t i o n , a l t h o u g h i t had shortcomings, would b e one good means of d i f f e r e n t i a t i o n i n p r i n c i p l e . However, t h e i n t e n t of t h e o f f e n d e r was an important element t o b e considered. The Delegate of Madagascar suggested t h a t t h e meeting should look a t o b j e c t i v e ( i . e . t h e consequences, e i t h e r r e a l o r d e s i g n e d ) and s u b j e c t i v e c r i t e r i a ( i . e . i n t e n t of t h e o f f e n d e r ) . T h i s l a t t e r i n t e n t was d i f f e r e n t from t h e i n t e n t i n bis, l i n e 2 of paragraph 1 - which r e f e r r e d t o f u l l mental c a p a c i t y without which an i n d i v i d u a l could n o t b e h e l d c r i m i n a l l y r e s p o n s i b l e . I n order t o c l a r i f y t h i s p o i n t , t h e D e l e g a t e of Madagascar t h e r e f o r e favoured t h e wording a l r e a d y suggested by t h e United Kingdom D e l e g a t i o n , " i f such a c t i s designed t o endanger." The d e l e t i o n of t h e enumeration of t h e means used t o commit t h e o f f e n c e was a l s o proposed. 13. The D e l e g a t e of Canada found t h e whole of paragraph 1 - a c c e p t a b l e bis H e believed t h a t and supported t h e comments made by t h e D e l e g a t e of Greece. paragraph 1 b i s contained t h e elements of t h e o f f e n c e and of t h e a p p l i c a t i o n of t h e P r o t o c o l , s t r e s s i n g t h a t t h e r e a l r e a d y e x i s t e d t h e t h r e e requirements f o r t h e a c t t o b e s u b j e c t t o t h e Instrument. These a r e t h a t t h e a c t must have been committed u s i n g a d e v i c e , s u b s t a n c e o r weapon; it must have been committed a g a i n s t a person a t an a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n and i t must The t e x t a l s o endanger o r b e l i k e l y t o endanger s a f e t y a t t h a t a i r p o r t . s u f f i c i e n t l y m e t t h e requirement t o avoid t h e a p p l i c a t i o n of t h e new Instrument t o p r i v a t e a c t s of v i o l e n c e . Canada could n o t a g r e e t o t h e s u g g e s t i o n made t o add t h e words "causing alarm o r t e r r o r i n t h e minds of persons" a s i t would i n t r o d u c e t h e concept of motives t o t h e a c t (which was n o t p r e s e n t i n t h e Montreal Convention).
14. The D e l e g a t e of Poland pointed o u t t h a t endangering s a f e t y a t an a i r p o r t was o n l y one of t h e p o s s i b l e consequences of a v i o l e n t t e r r o r i s t a c t ; o t h e r p o s s i b l e consequences, i . e causing p u b l i c f e a r o r d i s o r d e r , could b e included i n t h e q u a l i f i e r p h r a s e . Consequently, t h e D e l e g a t e of Poland proposed an amendment t o be considered by t h e D r a f t i n g Committee as f o l l o w s : i n t h e l a s t q u a l i f i e r p h r a s e a f t e r " i f such an a c t endangers o r i s l i k e l y t o endanger s a f e t y " , add t h e words "or o t h e r w i s e produces o r i s l i k e l y t o produce p u b l i c f e a r a t t h a t a i r p o r t .I1
15. The Delegate of the United States supported existing bis. The u n d e r l y i n g q u e s t i o n was whether a s u f f i c i e n t o r c o r r e c t paragraph 1 t h r e s h o l d f o r making t h e o f f e n c e an i n t e r n a t i o n a l one had been a r t i c u l a t e d . I n r e l a t i o n t o t h e new element of i n t e n t , s h e f e l t t h i s would r e s u l t i n a double The i n t e n t requirement which t h e Delegation o f t h e United S t a t e s opposed. s e n t i m e n t s e x p r e s s e d , p a r t i c u l a r l y by t h e Delegates of t h e United Kingdom and Poland, t h a t consequences r a t h e r than i n t e n t i o n should b e t h e f o c u s i f t h e q u a l i f i e r were t o b e a l t e r e d were supported, and s h e complimented t h e D e l e g a t e from Greece f o r h e r a n a l y t i c a l remarks. Two o b s e r v a t i o n s were made. In i n t e r n a t i o n a l l a w , an instrument w a s t o b e i n t e r p r e t e d i n t h e l i g h t of i t s o b j e c t and purpose. As t h e purpose of t h e Conference was t o enhance t h e i n t e r n a t i o n a l l e g a l regime f o r combating a c t s of s e v e r e v i o l e n c e t h a t endanger s a f e t y a t a i r p o r t s , t h e D e l e g a t e of t h e United S t a t e s f e l t i t more a p p r o p r i a t e t o c l a r i f y t h e s e i n t e n t i o n s i n t h e Preamble r a t h e r t h a n i n t h e l a s t l i n e of The D e l e g a t e of t h e United S t a t e s a l s o cautioned a g a i n s t paragraph 1
e.
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def i n h g " t e r r o r i s m " i n l e g a l l y binding terms because of i t s inherent difficulties. She p o i n t e d o u t t h a t t h e q u a l i f i e r a l r e a d y e l a b o r a t e d s u f f i c i e n t l y on t h e p o i n t t h a t t h e P r o t o c o l was n o t d e a l i n g w i t h every a c t of v i o l e n c e a t an i n t e r n a t i o n a l a i r p o r t . Both t h e D e l e g a t e s of Kenya and Japan supported paragraph 1 - i n bis i t s p r e s e n t f o r m u l a t i o n . The D e l e g a t i o n of Kenya. shared t h e views expressed by Greece, Canada and t h e United S t a t e s t h a t t h e r e w a s no need f o r double i n t e n t i o n ( i . e . i n t e n t t o commit and i n t e n t t o endanger).
16.
The D e l e g a t e of A u s t r a l i a s t r e s s e d t h e importance of t h e consequences 17. of t h e o f f e n c e a s s e t o u t i n p a r t s a ) and b ) of paragraph 1 b i s . Australia would n o t s u p p o r t d o u b l e i n t e n t i o n o r double consequence i n t h e q u a l i f i e r , n o r a g r e e t o i n c l u s i o n i n t h e q u a l i f i e r o r t h e Preamble of any s p e c i f i c r e f e r e n c e t o t e r r o r i s m o r t o c a u s i n g p u b l i c alarm o r f e a r ,
18. The D e l e g a t e of Colombia agreed w i t h t h e e x i s t i n g wording of paragraph 1 - He f e l t i t would b e worthwhile t o amend t h e f i r s t preambular bis. paragraph, a s proposed by t h e D e l e g a t e of t h e United Kingdom, t o stress t h a t i t was n o t every a c t of v i o l e n c e b u t t e r r o r i s t v i o l e n c e a t a i r p o r t s s e r v i n g international c i v i l aviation. The Delegate of t h e I s l a m i c Republic of I r a n supported t h e e x i s t i n g t e x t of paragraph 1 b i s , a l t h o u g h h e would a g r e e t o minor changes t o remove any ambiguity r e g a r d i n g consequences of t h e v i o l e n t a c t , f o r example, i n s t e a d of " s a f e t y " add "endanger t h e s a f e o p e r a t i o n of an airport." The D e l e g a t e o f Malta accepted paragraph 1 - b u t f e l t t h a t t h e bis q u a l i f i e r s t i l l lacked s u f f i c i e n t p r e c i s i o n t o avoid ambiguity r e g a r d i n g t h e i n t e n t i o n of t h e o f f e n d e r .
19. The D e l e g a t e of France s t a t e d t h a t , even though t h e o r i g i n a l o b j e c t i v e of t h e P r o t o c o l had been t o s u p p r e s s t e r r o r i s t a c t s d e f i n e d by b o t h t h e i n t e n t of t h e o f f e n d e r and t h e consequences of t h e a c t , h e f e l t t h a t paragraph 1 b i s ( i n p a r t i c u l a r t h e l a s t l i n e ) w a s n o t t h e b e s t p l a c e t o e x p r e s s t h i s concern. H e t o o f e l t t h e q u a l i f i e r should remain unchanged; however, he had no o b j e c t i o n t o an amendment t o t h e Preamble, allowing t h e concerns expressed by t h e United Kingdom D e l e g a t i o n t o b e c o n s i d e r e d .
20. The D e l e g a t e of t h e Kingdom of t h e Netherlands f e l t t h a t t h e scope of t h e P r o t o c o l would have t o b e wide enough t o encompass a c t s of t e r r o r i s m a t a i r p o r t s b u t r e s t r i c t e d enough n o t t o encompass o r d i n a r y crimes. H e w a s n o t i n f a v o u r of double i n t e n t b u t expressed i n t e r e s t i n t h e p r o p o s a l t o amend t h e wording of t h e Preamble. H e a l s o supported t h e i d e a of more p r e c i s e wording t o t h e t e x t of t h e d r a f t P r o t o c o l .
21. The D e l e g a t e of P a k i s t a n agreed w i t h e x i s t i n g paragraph 1 - b u t n o t bis He f e l t t h a t t h e present t e x t w i t h t h e i n c l u s i o n of double i n t e n t . a u t o m a t i c a l l y excluded p r i v a t e a c t s of v i o l e n c e which d i d n o t endanger s a f e t y a t an a i r p o r t .
22. The D e l e g a t e of Norway had s u p p o r t e d , d u r i n g t h e i n i t i a l d e b a t e i n t h e f i r s t week of t h e Commission of t h e Whole, t h e s t r e n g t h e n i n g of t h e q u a l i f i e r by f o c u s i n g on t h e i n t e n t of t h e o f f e n d e r . A f t e r c a r e f u l r e f l e c t i o n on t h e d e b a t e , h e was now convinced t h a t t h e q u a l i f i e r should remain
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unchanged. Preamble. weapon".
I f t h i s i n t e n t i o n needed c l a r i f i c a t i o n , he supported amending t h e The Delegate a l s o favoured d e l e t i o n of "device, s u b s t a n c e o r
23. expressed Protocol "designed f i r s t and
The D e l e g a t e of Denmark a l s o supported e x i s t i n g paragraph 1 - b u t bis i n t e r e s t i n an amendment t o t h e Preamble, c l a r i f y i n g t h a t t h e d e a l t with t e r r o r i s t a c t s . He suggested adding words such as t o c a u s e t e r r o r ' ' a f t e r t h e words "unlawful a c t s of violence" i n t h e t h i r d preambular paragraphs. (The meeting adjourned a t 1230 h o u r s )
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DRAFT Seventh Meeting Commission of t h e Whole
SEVENTH MEETING O THE COMMISSION OF THE WHOLE F (Monday, 1 5 February 1988, a t 1400 h o u r s )
Chairman : M r
.'P.
Kirsch
1. The Commission resumed i t s c o n s i d e r a t i o n of t h e l a s t l i n e of paragraph 1 bis, w i t h t h e D e l e g a t e of I t a l y t a k i n g t h e f l o o r . H e favoured r e t e n t i o n of paragraph 1 b i s as p r e s e n t l y formulated. The element of i n t e n t w a s w e l l formulated i n t h e beginning of paragraph 1 - and a l r e a d y included bis t h e concerns expressed by s e v e r a l Delegates who had suggested amending t h e l a s t l i n e of paragraph 1 bis. The i n c l u s i o n of a r e f e r e n c e t o t e r r o r i s m i n t h i s paragraph would n o t be a c c e p t a b l e although h e would c o n s i d e r i t s i n c o r p o r a t i o n i n t o t h e Preamble.
2. The Delegate of China shared t h e views expressed by t h e D e l e g a t e s of Greece and Canada and favoured r e t e n t i o n of t h e e x i s t i n g - t e x t . The D e l e g a t e of I c e l a n d , r e f e r r i n g t o t h e i n t e r v e n t i o n s by t h e Delegates of t h e United Kingdom and Colombia, could n o t a c c e p t t h e i n c l u s i o n of double i n t e n t . I n a d d i t i o n , he was opposed t o adding t h e element of t h r e a t . The D e l e g a t e of M a l a w i concurred w i t h t h e comments of t h e Delegate of 3. t h e United S t a t e s r e g a r d i n g t h e purpose of t h e Conference and t h e c l a r i f i c a t i o n of t h e i n t e n t i o n s i n t h e Preamble r a t h e r than i n paragraph 1 - I n support bis. of t h e comments made by t h e Delegate of t h e United Kingdom i n r e f e r e n c e t o t e r r o r i s m , t h e Delegate of Malawi a l s o favoured amending t h e Preamble of t h e d r a f t Protocol. A second approach would be t o exclude from e x t r a d i t i o n c r i m i n a l a c t s which were n o t t e r r o r i s t acts. He f e l t that the international c h a r a c t e r of t h e unlawful acts was a l r e a d y c l e a r l y emphasized i n Preambular paragraph 1 and t h a t , i f t h e s u g g e s t i o n s of t h e D e l e g a t e of t h e United Kingdom were adopted, i t would o n l y reemphasize t h i s p o i n t . T h e r e f o r e , he suggested t h e f o r m u l a t i o n o f a n a d d i t i o n a l paragraph i n t h e Preamble as f o l l o w s : "CONSIDERING f u r t h e r t h a t t h e adoption of t h e a p p r o p r i a t e measures should o n l y extend t o t h o s e unlawful a c t s of v i o l e n c e w i t h c h a r a c t e r which go beyond t h e scope of t h e e x i s t i n g n a t i o n a l j u r i s d i c t i o n of t h e a u t h o r i t i e s i n whose t e r r i t o r y they are committed and t h a t c o - o p e r a t i v e measures a r e n e c e s s a r y t o d e a l w i t h such a c t s , " . As t h e Delegate of M a l a w i could n o t a g r e e t o t h e i n c o r p o r a t i o n of a d e f i n i t i o n of t e r r o r i s m , even i n t h e Preamble, t h i s would b e avoided by t h e above i n c l u s i o n . The D e l e g a t e of E t h i o p i a added h i s support t o t h e m a j o r i t y view by a c c e p t i n g e x i s t i n g paragraph 1 b i s , t h e reasons f o r t h i s having a l r e a d y been The concept c l e a r l y enumerated by t h e D e l e g a t e s of Greece, Canada and o t h e r s . of t e r r o r i s m w a s f e l t t o be a l r e a d y a d e q u a t e l y r e f l e c t e d . The Delegate of Finland a l s o supported t h e p r e s e n t wording of paragraph 1 b i s , mentioning s p e c i f i c a l l y t h e comments made by t h e D e l e g a t i o n s of Norway, Denmark, Greece and Canada. A d d i t i o n a l p r o p o s a l s regarding t h e Preamble would n e v e r t h e l e s s be considered
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4.
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The D e l e g a t e of Cuba, r e f e r r i n g t o t h e elements of t h e o f f e n c e , 5. j favoured r e t e n t i o n i n t h e body of t h e P r o t o c o l of t h e s u b- e c t i v e elements r e l a t i n g t o i n t e n t and t h r e a t . However he f e l t t h a t d e f i n i n g t e r r o r i s m could b e s t b e t a k e n up i n some o t h e r forum even though he would a g r e e t o i t s mention i n t h e Preamble. Some of t h e f o r m u l a t i o n s i n t h e r e s o l u t i o n s adopted by t h e General Assembly of t h e U.N. ( p a r t i c u l a r l y A40-61) and t h e r e s o l u t i o n adopted l a s t year i n Doc. 40-834 were suggested a s guidance. 6. The Delegate of Sweden endorsed t h e e x i s t i n g q u a l i f i e r . Although he could i d e n t i f y w i t h t h e i d e a s p r e s e n t e d by t h e D e l e g a t e of t h e u n i t e d Kingdom, he was n o t c l e a r what new wording f o r t h e q u a l i f i e r was a c t u a l l y being proposed. He f e l t t h a t some d i s c r e p a n c y e x i s t e d between t h i s new wording, as he understood i t , and t h e wording i n VIA Doc No. 24. H e was not opposed t o amending t h e Preamble t o emphasize t h e t e r r o r i s m a s p e c t b u t s t r e s s e d t h a t t h e q u a l i f i e r must remain, whether t h e Preamble was amended o r n o t . Attempting t o d e f i n e t e r r o r i s m a t t h i s Conference would, i n h i s o p i n i o n , be u n s u c c e s s f u l . It was pointed o u t t h a t t h e q u e s t i o n of t h r e a t i n paragraph 1 - had n o t been bis included a s one of t h e t h r e e i t e m s t o be d i s c u s s e d i n t h e Commission of t h e Whole. A s t h i s t o p i c had been r e f e r r e d t o by many D e l e g a t i o n s ( i n c l u d i n g Sweden) i n t h e i r i n i t i a l s t a t e m e n t s , he hoped t h a t it could b e t a k e n up a t a later stage o r i n the Drafting Cornittee.
7. The Chairman s t a t e d t h a t a l l p r o p o s a l s made p r e v i o u s l y on o t h e r p a r t s A l l o t h e r i s s u e s could be r e f e r r e d t o t h e of 1 b i s had n o t been overlooked. D r a f t i n g Committee but t h e q u a l i f i e r , i n p a r t i c u l a r t h e q u e s t i o n of i n t e n t i o n , deserved more d e b a t e i n t h e Commission of t h e Whole because i t was t h e s u b j e c t of new p r o p o s a l s which had n o t been d i s c u s s e d i n t h e Legal Committee.
8. The D e l e g a t e-- of Romania supported paragraph 1 - i n i t s p r e s e n t -bis formulation. H e d i d however f a v o u r d e l e t i o n of t h e words " s e r i o u s " and 11s e r i o u s l y " as i t was f e l t t h a t t h e important element was i n j u r y and t h e s a f e t y of t h e a i r p o r t , n o t t h e s e r i o u s n e s s of t h e damage o r i n j u r y , t h e r e b y making it c o n s i s t e n t with t h e Montreal Convention.
9. As no o t h e r D e l e g a t i o n s wished t o have t h e f l o o r , t h e Chairman summarized t h e d i s c u s s i o n s . The m a j o r i t y of D e l e g a t i o n s favoured a q u a l i f i e r A s w e l l , h e noted t h a t t h e p o s i t i o n s of many a t t h e end of paragraph 1 b i s . D e l e g a t i o n s had changed somewhat; i n i t i a l l y d i s c u s s i o n s began due t o t h e need t o examine whether t h e i n t e n t of t h e o f f e n d e r t o j e o p a r d i z e t h e s a f e t y of an a i r p o r t should be an e s s e n t i a l p a r t of t h e d e f i n i t i o n of t h e o f f e n c e . After d i s c u s s i o n s , however, most D e l e g a t i o n s d i d n o t want t h i s element of i n t e n t added t o t h e f i n a l p a r t of paragraph 1 bis. Some D e l e g a t i o n s favoured adding an o b j e c t i v e element t o i n d i c a t e t h a t t h e e f f e c t of t h e o f f e n c e was t o c a u s e t e r r o r o r alarm t o t h e p u b l i c . Two approaches were suggested. The f i r s t , t o add a new q u a l i f i e r t o t h e end of paragraph 1 b i s r e f e r r i n g t o t h e terror-causing e f f e c t of t h e o f f e n c e , c r e a t e d d i f f i c u l t i e s f o r some Delegations. The second approach, t o amend t h e Preamble t o c l a r i f y t h i s e f f e c t , appeared t o o f f e r more f l e x i b i l i t y a l t h o u g h n o t - D e l e g a t e s had all agreed. The d i s c u s s i o n s h e l d s o f a r should p r o v i d e enough guidance t o t h e D r a f t i n g Committee t o begin work on paragraph 1 - as a whole, and t o p r e p a r e bis t e x t f o r submission t o t h e Commission of t h e Whole w i t h a view t o i t s e v e n t u a l adoption. H e suggested t h a t t h i s p a r t of t h e P r o t o c o l should now be r e f e r r e d Copyright International Civil Aviation Organization t under h e D r a Provided by IHSo t license with ICAO f t i n g Committee.
No reproduction or networking permitted without license from IHS
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10. The D e l e g a t e of t h e United Kingdom suggested t h a t t h e t h i r d "Considering" c l a u s e i n t h e Preamble t o t h e I M O ' S d r a f t Convention on t h e Suppression of Unlawful Acts a g a i n s t t h e S a f e t y o f M a r i t i m e Navigation could be examined by t h e D r a f t i n g Committee w i t h a view t o s t r e n g t h e n i n g t h e second "Considering" c l a u s e of t h e D r a f t P r o t o c o l . H e suggested t h e wording "Considering t h a t t h e world-wide e s c a l a t i o n of a c t s of t e r r o r i s m i s a matter of g r a v e concern".
11. The D e l e g a t e of Venezuela had understood t h a t most D e l e g a t i o n s favoured r e t e n t i o n of paragraph 1 b i s unchanged, w i t h an amendment t o t h e Preamble i f considered n e c e s s a r y . For t h i s r e a s o n , he asked f o r c l a r i f i c a t i o n on whether t h e Preamble was t o be s e n t t o t h e D r a f t i n g Committee.
12. The Chairman f e l t t h a t enough d e b a t e had been c a r r i e d o u t on paragraph 1 b i s t o r e f e r it t o t h e D r a f t i n g Committee. However, as one of t h e p r o p o s a l s made i n connection w i t h paragraph 1 b i s was an amendment t o t h e bis Preamble, t h a t p a r t of t h e Preamble r e l a t i n g t o paragraph 1 - would a l s o f a l l w i t h i n t h e D r a f t i n g Committee's mandate. A s t h e I M O Convention had been d r a f t e d a f t e r t h e Montreal Meeting of t h e Legal Committee, i t could be r e f e r r e d t o t h e D r a f t i n g Committee f o r c o n s i d e r a t i o n .
13. Turning t o t h e second item b e f o r e t h e Commission of t h e Whole, i.e. J u r i s d i c t i o n and E x t r a d i t i o n , t h e Chairman summarized two p o i n t s which had a l r e a d y been r a i s e d ; t h e e x i s t e n c e of paragraph 2 b i s i n t h e P r o t o c o l and t h e decision t o include a reference t o a i r c r a f t not i n s e r v i c e located a t t h e airport. Some i d e a s had a l s o been r a i s e d i n t h e g e n e r a l d e b a t e and t h e Chairman f e l t t h e s e should now be developed. During d i s c u s s i o n i n t h e Commission of t h e Whole t h e Delegate of I t a l y had mentioned h i s i n t e n t i o n t o As t h i s t e x t w a s not yet submit a document on j u r i s d i c t i o n and e x t r a d i t i o n . a v a i l a b l e i n a l l languages, t h e Executive S e c r e t a r y was asked t o read t h e t e x t .
14. The Executive S e c r e t a r y commented t h a t t h i s t e x t , p r e s e n t e d a t t h e Third Meeting of t h e Conference, amplified on t h e p r o p o s a l of A u s t r i a , i.e. t h a t t h e r e was no need f o r a new paragraph 2 b i s as a l l n e c e s s a r y amendments could b e i n s e r t e d i n t o t h e e x i s t i n g paragraph 2 of A r t i c l e 5 of t h e Montreal Convention, r e c o g n i z i n g t h a t r e f e r e n c e must b e made n o t o n l y t o e x t r a d i t i o n t o a S t a t e mentioned i n paragraph 1 ( a ) b u t a l s o t o paragraphs ( b ) and ( d ) i n c a s e New paragraph 2 of r e f e r e n c e t o a i r c r a f t n o t i n s e r v i c e was included. A r t i c l e 5 of t h e Convention should read:
"2. Each C o n t r a c t i n g S t a t e s h a l l l i k e w i s e t a k e such measures as may b e n e c e s s a r y t o e s t a b l i s h i t s j u r i s d i c t i o n o v e r t h e o f f e n c e s mentioned i n A r t i c l e 1, paragraphs 1 ( a ) , ( b ) and ( c ) , i n A r t i c l e 1, paragraph 1 b i s and i n A r t i c l e 1, paragraph 2, i n s o f a r a s t h a t paragraph r e l a t e s t o t h o s e o f f e n c e s , i n c a s e where t h e a l l e g e d o f f e n d e r i s p r e s e n t i n i t s t e r r i t o r y and i t does n o t e x t r a d i t e him pursuant t o A r t i c l e 8 t o any of t h e S t a t e s mentioned i n paragraph 1 of t h i s A r t i c l e .It
15. The Delegate of I t a l y s t r e s s e d t h a t t h e o n l y change t o t h e e x i s t i n g paragraph 2 of A r t i c l e 5 of t h e Montreal Convention was t h e a d d i t i o n of a r e f e r e n c e t o paragraph 1 b i s of A r t i c l e 1.
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17. The D e l e g a t e of I n d i a s t a t e d t h a t t h e i m p l i c a t i o n s of t h e p r o p o s a l were t h a t t h e p r o v i s i o n i n A r t i c l e 5 r e g a r d i n g j u r i s d i c t i o n and e x t r a d i t i o n would b e t h e same f o r a l l o f f e n c e s found i n t h e Montreal Convention and Although t h e o f f e n c e s which would b e added as a r e s u l t of t h i s P r o t o c o l . p r o p o s a l had c e r t a i n merits i n t h a t t h e p r o v i s i o n s of t h e P r o t o c o l would b e c o n s i s t e n t w i t h t h e e x i s t i n g Montreal Convention, h e f e l t t h a t it would n o t r e c o g n i z e t h e s p e c i f i c n a t u r e of t h e o f f e n c e being c o n s i d e r e d a t t h i s The Legal Committee Conference, i.e. t h o s e o f f e n c e s committed a t an a i r p o r t . d r a f t made q u i t e c l e a r t h e d i s t i n c t i o n between t h o s e o f f e n c e s committed a t an a i r p o r t and t h o s e d e a l i n g w i t h a i r c r a f t i n f l i g h t and he f e l t t h i s d i s t i n c t i o n would b e l o s t and t h e r e f o r e would b e u n a c c e p t a b l e i f t h e D e l e g a t e of I t a l y s p r o p o s a l were a c c e p t e d . H e a l s o r e i t e r a t e d t h a t t h e i n c l u s i o n of a i r c r a f t n o t i n s e r v i c e ( o r a s i m i l a r c o n c e p t ) was e s s e n t i a l .
18. The D e l e g a t e of Belgium had no o b j e c t i o n i n p r i n c i p l e t o t h e p r o p o s a l b u t f e l t t h a t t h e o f f e n c e covered i n sub-paragraph ( d ) , paragraph 1 of A r t i c l e 1 of t h e Montreal Convention would b e excluded from a S t a t e s o b l i g a t i o n t o e s t a b l i s h i t s j u r i s d i c t i o n ; he d i d n o t view t h i s as a l o g i c a l c o u r s e of a c t ion.
19. The D e l e g a t e from M a l a w i f e l t t h a t t h e i n c l u s i o n of a i r c r a f t n o t i n The Montreal s e r v i c e brought up new dimensions not p r e v i o u s l y c o n s i d e r e d . Convention had addressed t h e i s s u e of e x t r a d i t i o n and j u r i s d i c t i o n , making t h e p l a c e of commission of t h e crime i r r e l e v a n t . However, t h i s P r o t o c o l had t h e d i s t i n c t f e a t u r e t h a t t h e o f f e n c e s were l o c a l i z e d . A r t i c l e 5, paragraph 1 of t h e Montreal Convention e s t a b l i s h e d t h e b a s i s f o r j u r i s d i c t i o n by i d e n t i f y i n g t h e circumstances which would e n t i t l e a C o n t r a c t i n g S t a t e t o e x e r c i s e j u r i s d i c t i o n and by l i m i t i n g t h e g r a n t i n g of t h a t j u r i s d i c t i o n by n o t making o f f e n c e s under A r t i c l e 1 ( d ) and ( e ) , s u b j e c t t o j u r i s d i c t i o n o r e x t r a d i t i o n . A r t i c l e 5 , paragraph 3 of t h e Montreal Convention recognized c r i m i n a l jurisdiction, e x e r c i s e d i n accordance w i t h n a t i o n a l l a w . A r t i c l e 8, paragraph 2 s u b j e c t e d t h e e x t r a d i t i o n r i g h t t o c o n d i t i o n s which might b e A r t i c l e 5 , paragraph 2 s t i p u l a t e d by t h e law of t h e r e q u e s t e d S t a t e . introduced some s p e c i f i c i t y i n t o t h e scope of e x t r a d i t i o n . Article 2 - did bis l i k e w i s e except i t introduced s p e c i f i c i t y i n r e l a t i o n t o t h e S t a t e e n t i t l e d t o seek e x t r a d i t i o n . A r t i c l e 2 had allowed o t h e r C o n t r a c t i n g S t a t e s ( a p a r t from t h e S t a t e of o c c u r r e n c e ) t o e x e r c i s e j u r i s d i c t i o n .
20. The D e l e g a t e of France s t a t e d t h a t t h i s i s s u e would d e t e r m i n e whether France would b e a s i g n a t o r y t o t h e P r o t o c o l . H i s position i n relation t o A r t i c l e 5 was n o t wholly f i r m because t h e t e x t was n o t a v a i l a b l e i n t h e f o u r working languages of t h e O r g a n i z a t i o n and a l s o t h e f i n a l d r a f t i n g of bis Nevertheless he r e c a l l e d t h a t A r t i c l e 5 paragraph 1 - had n o t been decided. as amended by t h e Convention should r e t a i n d i s c r e t i o n a r y freedom f o r S t a t e s i n r e g a r d t o e x t r a d i t i o n t o t h e S t a t e making a r e q u e s t ( b e t h a t e i t h e r t h e S t a t e Copyright International Civilu r r e n c e of of underclicense with ICAO o c Aviation Organization t h e o f f e n c e o r t h a t of t h e n a t i o n a l i t y of t h e v i c t i m s o r t h e Provided by IHS
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16. The Chairman confirmed t h e Delegate of F i n l a n d s understanding t h a t , i n c o n s i d e r a t i o n of any p r o p o s a l , t h e Commission w a s u s i n g t h e e x i s t i n g wording A s t o a d e f i n i t i o n f o r a i r c r a f t n o t i n u s e , he commented of paragraph 1 b i s . t h a t , d u r i n g t h e f i r s t d e b a t e of t h e Commission of t h e Whole, a l l D e l e g a t i o n s had accepted t h a t a i r c r a f t n o t i n s e r v i c e o r an e q u i v a l e n t concept would b e included i n t h e A r t i c l e .
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o f f e n d e r ) . H e d i d n o t wish t o u p s e t t h e b a l a n c e of t h e Montreal Convention and s p e c i f i c a l l y d i d n o t want sub-paragraph ( d ) of paragraph 1 of A r t i c l e 1 introduced i n t o A r t i c l e 5.
21. The Delegates of Venezuela and t h e Union of S o v i e t S o c i a l i s t Republics concurred w i t h t h e Delegate of France r e g a r d i n g a v a i l a b i l i t y of t r a n s l a t e d t e x t and t h e f i n a l d r a f t i n g of paragraph 1 b i s and t h e Chairman confirmed t h a t t h e t e x t would b e d i s t r i b u t e d i n a l l f o u r working languages as quickly as possible. Some Delegations expressed i n t e r e s t i n t h e D e l e g a t e of I n d i a s attempt t o d i s t i n g u i s h between o f f e n c e s covered by t h e Montreal Convention and t h o s e covered by t h e P r o t o c o l . The D e l e g a t e of Venezuela suggested a s e p a r a t e paragraph t o d e a l w i t h j u r i s d i c t i o n and e x t r a d i t i o n .
23. The D e l e g a t e o f Colombia a l s o f e l t t h a t t h e new t e x t of bis H e b e l i e v e d t h a t problems would be paragraph 1 - was very important. encountered a t a l a t e r s t a g e i n a c c e p t i n g t h e t e x t proposed by t h e D e l e g a t e of I t a l y because t h e r e would b e no s p e c i f i c r e s t r i c t i o n s on j u r i s d i c t i o n o r e x t r a d i t i o n following an o f f e n c e i f no mention were made of a i r c r a f t n o t i n service. J u r i s d i c t i o n and e x t r a d i t i o n should b o t h b e e s t a b l i s h e d b u t d e a l t with i n a s e p a r a t e paragraph such a s t h a t of 2 b i s which was found i n t h e t e x t bis of t h e Legal Committee. A r t i c l e 1 - and A r t i c l e 5 were q u i t e c l e a r ; any amendment t o A r t i c l e 5 , p a r a g r a p h 2 c o u l d g i v e r i s e t o p r o b l e m s of i n t e r p r e t a t ion.
24. The D e l e g a t e of t h e United S t a t e s s t a t e d t h a t t h e r e appeared t o b e unanimous support f o r t h e i n c l u s i o n of a i r c r a f t n o t i n s e r v i c e , t h u s demanding an alignment of A r t i c l e III of t h e t e x t of t h e P r o t o c o l . She favoured t h e She a l s o f e l t i t d e s i r a b l e t o s o l u t i o n put forward by t h e Delegate of I t a l y . m a i n t a i n t h e b a l a n c e between p r o s e c u t i o n and e x t r a d i t i o n which was contained i n t h e Montreal Convention. The t a s k of t h i s Diplomatic Conference had evolved i n t o adding a new o f f e n c e t o t h e Montreal Convention. She agreed t h a t .it would b e c o n s i s t e n t and r e l e v a n t t o c o n s i d e r whether t h e i n t e r e s t s of S t a t e s o t h e r t h a n t h e S t a t e of p l a c e of o c c u r r e n c e , t h e S t a t e i n which t h e o f f e n d e r was found and t h e S t a t e of r e g i s t r y should be r e f l e c t e d i n t h e P r o t o c o l . She suggested t h e i n c l u s i o n of a p r o v i s i o n i n t h e P r o t o c o l t h a t would add t o t h e c o u n t r i e s which must e s t a b l i s h j u r i s d i c t i o n over t h e o f f e n c e s l i s t e d i n A r t i c l e 5, paragraph 1 of t h e Montreal Convention, a f i f t h p o s s i b i l i t y , i . e . when an o f f e n c e w a s committed a g a i n s t a n a t i o n a l of a S t a t e .
25. The Chairman r e c a l l e d t h a t two more i d e a s were t o be d i s c u s s e d i n t h e Commission of t h e Whole b e f o r e t h e D r a f t i n g Group made i t s f i r s t r e p o r t j u r i s d i c t i o n and e x t r a d i t i o n and p r e v e n t i v e measures. I f t h e t e x t of t h e p r o p o s a l of t h e D e l e g a t e of I t a l y were n o t a v a i l a b l e by t h e n e x t morning, t h e Copyright International Civil Aviation Organizationasked Chairman Delegates t o b e prepared t o d i s c u s s p r e v e n t i v e measures u n t i l Provided by IHS under license with ICAO such time a s t IHS No reproduction or networking permitted without license from h e t e x t was a v a i l a b l e . Not for Resale
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22. The D e l e g a t e of C h i l e a l s o r e s e r v e d judgement u n t i l t h e t r a n s l a t e d t e x t was a v a i l a b l e . H e f e l t t h a t t h e p r o p o s a l aimed a t supplementing o r adding t o c e r t a i n a s p e c t s of t h e Montreal Convention which would cover t h e o f f e n c e s I f t h e proposal affecting airports serving international c i v i l aviation. favoured s u b s t i t u t i o n , he could n o t a g r e e as he f e l t t h a t t h e b a l a n c e between H e had agreed t o r e t a i n j u r i s d i c t i o n and e x t r a d i t i o n would be u p s e t . A r t i c l e III ( o r s i m i l a r ) of t h e P r o t o c o l independent of t h e A r t i c l e s i n t h e Montreal Convention, t h e r e b y r e t a i n i n g t h i s balance.
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Not for Resale
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DRAFT Eighth Meeting Commission of t h e Whole
EIGHTH MEETING O THE COMMISSION O THE WHOLE F F

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Chairman:
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AGENDA ITEM 9:
A r t i c l e III 1. The Chairman d i r e c t e d t h a t d i s c u s s i o n of j u r i s d i c t i o n and e x t r a d i t i o n b e continued and i n v i t e d o b s e r v a t i o n s on a d r a f t A r t i c l e III p r e s e n t e d i n V I A Doc No. 29 by t h e D e l e g a t i o n of I t a l y . S e v e r a l d e l e g a t i o n s expressed t h e view t h a t i t was n o t d e s i r a b l e from a l e g a l p o i n t of view t o amend any p r o v i s i o n s of t h e Montreal Convention, among them t h e Delegate of Greece and t h e D e l e g a t e of Canada, a l t h o u g h t h e l a t t e r could a c c e p t t h e s u b s t a n c e of t h e I t a l i a n proposal. The Delegate of t h e Union of S o v i e t S o c i a l i s t Republics emphasized t h a t it was beyond t h e a u t h o r i t y of t h e Conference t o amend t h e Montreal Convention. D e l e t i n g paragraph 2 , as proposed by t h e I t a l i a n D e l e g a t i o n , would amend t h e Montreal Convention, and h i s d e l e g a t i o n was opposed t o any amendment as i t was i t s g o a l t o f a c i l i t a t e t h e p a r t i c i p a t i o n of S t a t e s i n t h e p r o t o c o l , whether p a r t i e s t o t h e Convention o r n o t . It should a l s o be envisaged t h a t some S t a t e s p a r t i e s t o t h e Montreal Convention might n o t wish t o become p a r t i e s t o t h e p r o t o c o l . A s t o t h e s u b s t a n c e , he suggested t h a t t h e t e x t of t h e Legal Committee could b e m o d i f i e d , t a k i n g i n t o c o n s i d e r a t i o n t h e s u g g e s t i o n s i n t h e I t a l i a n p r o p o s a l o r o t h e r p r o p o s a l s , and t h i s would b e a c c e p t a b l e t o h i s d e l e g a t i o n i f t h e p r o v i s i o n s of t h e Montreal Convention were n o t amended. The D e l e g a t e of t h e Kingdom of t h e Netherlands s t a t e d t h a t even i f t h e Conference were t o p r e f e r an e x t e n s i o n of t h e o b l i g a t i o n s , t h i s should n o t b e done by amending t h e Montreal Convention, and t h e Delegate of t h e United Kingdom agreed w i t h t h e s t a t e m e n t s made by t h e S o v i e t and t h e Netherlands Delegations. The D e l e g a t e of Togo supported t h e s u b s t a n c e of t h e I t a l i a n p r o p o s a l , b u t a s t o form agreed w i t h t h e S o v i e t D e l e g a t i o n . The D e l e g a t e of C h i l e concurred with t h e s t a t e m e n t made by t h e S o v i e t D e l e g a t i o n , as d i d t h e Delegate of Kenya and t h e D e l e g a t e of Czechoslovakia. The D e b a t e of Cuba shared t h e view of t h e d e l e g a t i o n s wha opposed any amendments t o t h e Montreal Convention, s t a t i n g t h a t t h e p r o v i s i o n s of t h e Montreal Convention had been a p p l i e d i n h i s c o u n t r y and were compatible w i t h h i s countrys domestic laws.
2. The D e l e g a t e of Norway s a i d h i s d e l e g a t i o n s i n t e r p r e t a t i o n of A r t i c l e 5 of t h e Montreal Convention was t h a t i t d i d n o t d e a l w i t h e x t r a d i t i o n , a s t h i s was d e a l t w i t h i n A r t i c l e s 7 and 8 , n o r d i d i t d e a l w i t h t h e q u e s t i o n of t h e r i g h t of S t a t e s t o e s t a b l i s h j u r i s d i c t i o n . T h i s view was shared by t h e Delegate of t h e Kingdom of t h e Netherlands, who considered it should be l e f t t o t h e d i s c r e t i o n of S t a t e s as long a s i t d i d n o t i n f r i n g e upon t h e s o v e r e i g n r i g h t of o t h e r S t a t e s , and t h a t i t was c l e a r l y i n d i c a t e d i n paragraph 3 t h a t t h e Convention d i d n o t exclude j u r i s d i c t i o n e x e r c i s e d i n accordance with n a t i o n a l l a w , t h a t S t a t e s had a r i g h t t o e s t a b l i s h j u r i s d i c t i o n a l s o i n c a s e s
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n o t mentioned i n paragraphs 1 and 2, and t h a t i t concerned o n l y t h e o b l i g a t i o n t o e s t a b l i s h j u r i s d i c t i o n i n some s p e c i f i c c a s e s . The D e l e g a t e s of Kenya, t h e Kingdom of t h e Netherlands and t h e United Kingdom concurred t h a t A r t i c l e 5 concerned t h e o b l i g a t i o n t o e s t a b l i s h j u r i s d i c t i o n The D e l e g a t e of Canada agreed, adding t h a t i t simply i n s u r e d t h a t t h e p e r p e t r a t o r would b e prosecuted o r submitted -to t h e competent a u t h o r i t i e s f o r p r o s e c u t i o n i n accordance w i t h A r t i c l e 7 , o r b e e x t r a d i t e d . He d i d n o t b e l i e v e t h e i n t e n t of A r t i c l e s 5 o r 7 when read with A r t i c l e 8 was t h a t a S t a t e would have f u l f i l l e d i t s o b l i g a t i o n s i f t h e p e r p e t r a t o r were e x t r a d i t e d t o a S t a t e n o t p a r t y t o t h e Convention o r a S t a t e t h a t d i d n o t have t h e j u r i s d i c t i o n t o t r y t h e i n d i v i d u a l f o r t h e o f f e n c e , a l t h o u g h t h e Montreal Convention d i d s p e c i f y t h a t i f an i n d i v i d u a l were n o t e x t r a d i t e d , he should b e submitted t o t h e a u t h o r i t i e s i n t h e S t a t e i n which h e was found f o r p r o s e c u t i o n . The D e l e g a t e of t h e Kingdom of t h e Netherlands d i s a g r e e d w i t h t h e Canadian D e l e g a t i o n view t h a t a S t a t e would have f u l f i l l e d i t s o b l i g a t i o n o n l y by e x t r a d i t i n g an o f f e n d e r t o a S t a t e p a r t y t o t h e Convention, a s h i s d e l e g a t i o n b e l i e v e d a S t a t e would b e i n conformity as long as i t e x t r a d i t e d t h e o f f e n d e r , even t o a S t a t e n o t p a r t y t o t h e Montreal Convent i o n .
3. The D e l e g a t e of Norway s t a t e d t h a t t h e d r a f t prepared by t h e Legal Committee was i n h i s d e l e g a t i o n s view n o t t o t a l l y s a t i s f a c t o r y , r e f e r r i n g o n l y t o S t a t e s mentioned i n sub-paragraph 1 a ) of A r t i c l e 5. T h i s lead t o t h e p o s s i b i l i t y t h a t i f t h e S t a t e where t h e o f f e n c e had t a k e n p l a c e d i d n o t r e q u e s t e x t r a d i t i o n , t h e S t a t e where t h e o f f e n d e r was found d i d n o t have t h e o b l i g a t i o n t o e s t a b l i s h j u r i s d i c t i o n and t o p r o s e c u t e , and t h e o f f e n d e r could remain unpunished i n t h a t S t a t e . H i s d e l e g a t i o n t h e r e f o r e favoured t h e p r o p o s a l put f o r t h by t h e I t a l i a n D e l e g a t i o n . The Delegate of Japan a l s o wished t o s u p p o r t t h e I t a l i a n proposal.
4. The D e l e g a t e of Ghana s t a t e d t h a t sub-paragraph 1 a ) provided f o r a wider j u r i s d i c t i o n n o t l i m i t e d t o t h a t paragraph, and t h a t t h e r e would be a problem of s o l v i n g c o n f l i c t i n g c l a i m s among d i f f e r e n t S t a t e s r e q u e s t i n g t h e H i s d e l e g a t i o n b e l i e v e d t h a t t h e S t a t e i n which e x t r a d i t i o n of t h e o f f e n d e r . t h e o f f e n c e was committed was most d i r e c t l y l i n k e d w i t h t h e o f f e n c e and should have precedence o v e r t h e j u r i s d i c t i o n of any o t h e r S t a t e s . The D e l e g a t e of t h e Kingdom of t h e Netherlands suggested t h a t t h e r e f e r e n c e t o sub-paragraph 1 a ) i n t h e l a s t l i n e of t h e L e g a l Committee d r a f t should b e changed by d e l e t i n g t h e r e f e r e n c e t o sub-paragraph a ) t o a l i g n i t w i t h t h e I t a l i a n p r o p o s a l o r , a s t h e Delegate of Greece had proposed, by adding sub-paragraphs. The D e l e g a t e of Argentina thought t h i s p r o p o s a l was a profound amendment t o t h e d r a f t t e x t proposed by t h e Legal Committee, and s t a t e d t h a t , as t h e l a s t p a r t of t h e p r o p o s a l recognized a l l S t a t e s i n paragraph 1 when r e f e r r i n g t o e x t r a d i t i o n , which meant t h e y would have t h e r i g h t t o demand e x t r a d i t i o n i n o r d e r t o exercise j u r i s d i c t i o n , h i s delegation believed t h a t t h e offences defined i n t h e p r o t o c o l should b e s u b j e c t t o more e x p l i c i t j u r i s d i c t i o n t h a n t h o s e o u t l i n e d i n t h e Montreal Convention. He thought t h e e a r l i e r comments made by t h e D e l e g a t e of France when r e f e r r i n g t o o t h e r t y p e s of j u r i s d i c t i o n were more p r a c t i c a l . H i s d e l e g a t i o n p r e f e r r e d t h e d r a f t produced by t h e Legal Committee. The D e l e g a t e of Saudi Arabia wished t o be a s s o c i a t e d w i t h t h e s t a t e m e n t made by t h e D e l e g a t e of Argentina t o m a i n t a i n t h e t e x t as i n t h e o r i g i n a l d r a f t proposed by t h e Legal Committee, as d i d t h e D e l e g a t e of Mexico.
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DRAFT E i g h t h Meeting Commission of t h e Whole
Commenting on a i r c r a f t n o t i n s e r v i c e a t an a i r p o r t , t h e D e l e g a t e of f a v o u r e d e n l a r g i n g t h e number of S t a t e s which had j u r i s d i c t i o n , p a r t i c u l a r l y t h e j u r i s d i c t i o n of t h e S t a t e of r e g i s t r y of a i r c r a f t n o t i n service. The D e l e g a t e of Ghana s a i d t h a t t h e i n c l u s i o n of a i r c r a f t n o t i n s e r v i c e i n sub-paragraph 1 b ) s h o u l d n o t w a r r a n t t h e widening of j u r i s d i c t i o n a s would o c c u r i f t h e I t a l i a n p r o p o s a l were a d o p t e d , whereas t h e D e l e g a t e of Japan t h o u g h t i t n e c e s s a r y t o a p p l y t h e same concept of j u r i s d i c t i o n and e x t r a d i t i o n t o a i r c r a f t n o t i n s e r v i c e a s included i n t h e proposed sub-paragraph 1 b i s b ) . The - g a t e of Canada s t a t e d t h a t t h e problem w i t h Dele r e s p e c t t o t h e expansion of j u r i s d i c t i o n was d i r e c t l y l i n k e d t o a i r c r a f t n o t i n s e r v i c e , and o n l y i f t h i s were a c c e p t e d would t h e r e b e a need t o expand t h e o b l i g a t i o n s of S t a t e s t o i n c l u d e t h e S t a t e of r e g i s t r y o r S t a t e of t h e lessee a s i n sub-paragraphs 1 b ) and d ) of t h e e x i s t i n g A r t i c l e 5. The D e l e g a t e of --Mexico s a i d t h e problem o u t l i n e d by t h e D e l e g a t e of Canada was t h e r e s u l t of i n c l u d i n g a i r c r a f t n o t i n s e r v i c e , and t h a t t h e p r o t o c o l was d e s i g n e d t o p r o t e c t a i r p o r t s wit.hout d i s t i n g u i s h i n g between t h e p r o p e r t y l o c a t e d a t t h e a i r p o r t . The D e l e g a t e of t h e Kingdom of t h e N e t h e r l a n d s b e l i e v e d t h a t a i r c r a f t n o t i n s e r v i c e were p a r t of t h e p r o p e r t y of an a i r p o r t and t h e D e l e g a t e of Kenya s h a r e d t h a t view, a s d i d t h e D e l e g a t e of t h e U n i t e d Kingdom, adding t h a t f o r t h i s r e a s o n t h e o f f e n c e would always b e c a r r i e d o u t i n t h e t e r r i t o r y of a S t a t e and a s t h e r e was no q u e s t i o n of a i r c r a f t l a n d i n g t h e r e was no need t o add sub-paragraphs b ) , c ) and d ) . The D e l e g a t e of t h e Kingdom of t h e N e t h e r l a n d s was of t h e o p i n i o n t h a t i f a i r c r a f t n o t i n s e r v i c e w e r e i n c l u d e d i n t h e o f f e n c e , t h i s would n o t l e a d t o j u r i s d i c t i o n e x t e n d i n g t o t h e S t a t e of r e g i s t r y b u t .would b e l i m i t e d t o t h e t e r r i t o r i a l S t a t e . T h i s view was s h a r e d by t h e D e l e g a t e of Venezuela.
5.
--Greece
6. With r e s p e c t t o sub-paragraph 1 c ) , t h e D e l e g a t e of Greece b e l i e v e d t h i s sub-paragraph was o n l y a p p l i c a b l e t o a i r c r a f t i n f l i g h t and seemed u s e l e s s when a .. l i e d t o a i r c r a f t n o t i n s e r v i c e , and c o u l d c r e a t e . problems of pp interpretation. The D e l e g a t e of - Canada d i d n o t see t h e nee; for this sub-paragraph a p p l y i n g t o a i r c r a f t n o t i n s e r v i c e , whereas t h e D e l e g a t e of Japan approved t h e i n c l u s i o n of t h i s sub-paragraph i n t h e t e x t .
7. The m a j o r i t y of d e l e g a t i o n s were i n f a v o u r of m a i n t a i n i n g t h e t e x t a s Cuba, proposed by t h e Legal Committee, among them t h e D e l e g a t e s of C h i l e , Czechoslovakia, - _ . _ _ Ghana, Guinea, Kenya, t h e U n i t e d Kingdom and t h e D e l e g a t e of Venezuela, who d i d n o t w i s h t o extend t h e f i e l d of j u r i s d i c t i o n a s i t c o u l d create c o n f l i c t . The D e l e g a t e of Greece f a v o u r e d t h e a d o p t i o n of t h e L e g a l C o m m i t t e e d r a f t , w i t h an a d d i t i o n c o v e r i n g j u r i s d i c t i o n of t h e S t a t e of r e g i s t r y of a i r c r a f t n o t i n s e r v i c e by adding sub-paragraph b ) i n t h e l a s t l i n e of t h e t e x t . The D e l e g a t e of Togo a l s o a g r e e d , s a y i n g it s h o u l d b e amended i n l i n e w i t h t h e t e x t of t h e I t a l i a n p r o p o s a l .
8. The D e l e g a t e of I t a l y remarked t h a t h e r d e l e g a t i o n had made i t s p r o p o s a l t a k i n g i n t o c o n s i d e r a t i o n a i r c r a f t n o t i n s e r v i c e and t h a t t h e d r a f t of t h e L e g a l Committee had c r e a t e d problems by r e f e r r i n g t o sub-paragraph 1 a ) with respect t o extradition. To make p r o v i s i o n s f o r a i r c r a f t n o t i n s e r v i c e , s h e s u g g e s t e d t h e L e g a l Committee t e x t c o u l d b e amended by t h e d e l e t i o n of sub-paragraph a ) i n t h e l a s t l i n e of t h e t e x t , i n l i n e w i t h t h e many d e l e g a t i o n s which had v o i c e d o b j e c t i o n s t o amending t h e M o n t r e a l Convent i o n .
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DRAFT Eighth Meeting C o m m i s -T t h e Whole -x o
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The D e l e g a t e of t h e United S t a t e s concurred w i t h t h e s e o b s e r v a t i o n s concerning t h e c o n s i s t e n c y i n form of t h e proposed t e x t .
9. The Chairman expressed h i s g r a t i t u d e t o t h e I t a l i a n Delegation f o r i t s p r o p o s a l and, from t h e d i s c u s s i o n t h a t had ensued, noted t h a t many d e l e g a t i o n s had expressed a p r e f e r e n c e f o r adopting a p r o v i s i o n t h a t was independent from t h e e x i s t i n g A r t i c l e i n t h e Montreal Convention, and t h a t t h e Montreal Convention should n o t be a l t e r e d . He noted b a s i c a l l y f o u r p o s i t i o n s and suggested t h a t b e f o r e t h e d i s c u s s i o n of j u r i s d i c t i o n and e x t r a d i t i o n resumed a t t h e f o l l o w i n g meeting, c o n s u l t a t i o n s be h e l d c o n c e n t r a t i n g on two p o s s i b i l i t i e s : t h e adoption of A r t i c l e 2 - a s i t was d r a f t e d by t h e Legal bis Committee, and t h e p o s s i b i l i t y of adding some j u r i s d i c t i o n s mentioned i n Article 5 .
P r e v e n t i v e measures 10. The Chairman, d e c l a r i n g t h a t t h e d i s c u s s i o n would now f o c u s on p r e v e n t i v e measures, gave t h e f l o o r t o t h e D e l e g a t e of t h e Union of S o v i e t S o c i a l i s t R e p- b l i c s , who f e l t t h a t t h e m a j o r i t y of d e l e g a t i o n s had emphasized u t h a t p r e v e n t i v e measures would b e very important i n t h e s u p p r e s s i o n of t e r r o r i s t a c t i v i t i e s and thanked t h o s e who had advocated h i s d e l e g a t i o n s proposal. He wished t o s e e a consensus, and expressed t h e b e l i e f t h a t t h i s might b e s t be achieved i f p r e v e n t i v e measures were r e f l e c t e d i n a r e s o l u t i o n and n o t included i n t h e d r a f t p r o t o c o l , adding t h a t h i s d e l e g a t i o n had e l a b o r a t e d a d r a f t r e s o l u t i o n which i t would submit f o r c o n s i d e r a t i o n by t h e Conference i n t h e hopes t h a t such a r e s o l u t i o n would b e f u l l y s u p p o r t e d . Among t h e d e l e g a t i o n s which supported t h e p r o p o s a l were t h e Delegate of t h e Byelorussian S o v i e t,who s a i d a r e s o l u t i o n would h e l p s t r e n g t h e n t h e e f f o r t s t o combat unlawful i n t e r f e r e n c e , and t h a t p r e v e n t i v e measures could b e r e f l e c t e d i n b o t h ICAO documentation and i n n a t i o n a l p r a c t i c e , t h e D e l e g a t e of Ecuador and t h e Delegate of Sweden. The D e l e g a t e of Czechoslovakia b e l i e v e d t h i s was a balanced way of drawing t h e a t t e n t i o n of C o n t r a c t i n g S t a t e s a s w e l l a s a i r l i n e s and I C A O t o t h e f a c t t h a t p r e v e n t i v e measures were n e c e s s a r y t o s u p p r e s s unlawful a c t s of v i o l e n c e p e r p e t r a t e d a t airports serving international c i v i l aviation. The D e l e g a t e of Cte d I v o i r e s a i d h i s d e l e g a t i o n was prepared t o support t h e S o v i e t p r o p o s a l , s t a t i n g t h a t p r e v e n t i v e measures were one of t h e most e s s e n t i a l elements of t h e proposed p r o t o c o l and t h a t it would be d e s i r a b l e t o m a i n t a i n t h e b a l a n c e and harmony between t h e p r o t o c o l and t h e Montreal Convention. H e b e l i e v e d t h a t i n a d d i t i o n t o A r t i c l e s 10 and 1 2 of t h e Montreal Convention, Annex 17 and t h e S e c u r i t y Manual c o n t a i n e d e f f e c t i v e measures. The D e l e g a t e of Kenya s a i d t h a t a v i a t i o n s e c u r i t y was a p r i o r i t y and a s h i s country had two i n t e r n a t i o n a l a i r p o r t s , considered t h e s a f e t y of t h a t a i r p o r t c r i t i c a l . H i s d e l e g a t i o n was conscious of t h e f a c t t h a t p r e v e n t i v e measures had been c a l l e d f o r i n documentation, i n c l u d i n g Conventions such a s t h e Montreal Convention and Annex 1 7 , and agreed t h a t a r e s o l u t i o n a s proposed by t h e S o v i e t Delegation be adopted. The D e l e g a t e of Canada r e i t e r a t e d h i s d e l e g a t i o n s p o s i t i o n which favoured t h e adopt ion of a r e s o l u t i o n .
11. The D e l e g a t e of A r g e n t i n a , s t a t i n g t h a t t h i s p r o p o s a l r e p r e s e n t e d s p e c i f i c o b l i g a t i o n s f o r S t a t e s , and t h a t it was n o t a p p r o p r i a t e t o i n c l u d e p r e v e n t i v e measures i n a p r o t o c o l as t h e y were more c o n c r e t e than t h e g e n e r a l

--`,,```,,,,````-`-`,,`,,`,`,,`---
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measures i n A r t i c l e 10 of t h e Montreal Convention, would a c c e p t t h e S o v i e t p r o p o s a l t o i n c l u d e them i n a r e s o l u t i o n , as t h e s e p r i n c i p l e s should be recognized and would s e r v e a s guidance i n t h e f u t u r e . The D e l e g a t e of China d e c l a r e d t h a t h i s d e l e g a t i o n shared t h e view of s e v e r a l d e l e g a t ions who agreed t h a t p r e v e n t i v e measure were a d e q u a t e l y covered i n A r t i c l e 10 of t h e Montreal Convention as w e l l a s i n Annex 1 7 , and s o should remain w i t h i n t h e scope of t h o s e documents. H e wondered i f t h e Conference should examine ways t o add some p r o v i s i o n s i n Annex 17 b u t , i f t h e Conference were t o adopt a r e s o l u t i o n , h i s d e l e g a t i o n could a c c e p t t h e views expressed by t h e D e l e g a t e of Argentina. 12. The D e l e g a t e of Venezuela, recognizing t h a t t h e Conference was favouring t h e adoption of p r e v e n t i v e measures i n a r e s o l u t i o n , s t a t e d t h a t I C A O was studying i n t h e Council and t h e Standing Committees v a r i o u s s e c u r i t y measures t o b e t a k e n a t i n t e r n a t i o n a l a i r p o r t s ; t h e f a c t t h a t t h i s Conference had been convened i n such a s h o r t period of time demonstrated t h e importance of p r e v e n t i v e measures. The r e s o l u t i o n should emphasize t h e a p p l i c a t i o n of t h e s e measures a t a i r p o r t s , and a s I C A O had a l r e a d y made a c e r t a i n amount of p r o g r e s s , having c o n t a c t e d C o n t r a c t i n g S t a t e s i n a p o s i t i o n t o provide a s s i s t a n c e and t h o s e i n a p o s i t i o n t o r e c e i v e i t , wished t o a s c e r t a i n t h a t t h e r e s o l u t i o n would r e c o g n i z e t h e e f f o r t s and t h e p r o g r e s s made by I C A O i n t h i s respect.
13. The D e l e g a t e of t h e Republic of Korea favoured t h e i n c l u s i o n of p r e v e n t i v e measures i n t h e d r a f t p r o t o c o l b u t i n t h e s p i r i t of co-operation would concede t o a r e s o l u t i o n .

14. The D e l e g a t e of Niger s t a t e d h i s d e l e g a t i o n ' s i n t e n t t o support t h e S o v i e t p r o p o s a l , which would have i m p l i c a t i o n s f o r S t a t e s p a r t i c u l a r l y such as h i s w i t h l i m i t e d r e s o u r c e s f o r implementation. He r e f e r r e d t o t h e s t a t e m e n t made by t h e M i n i s t e r of S t a t e f o r T r a n s p o r t of Canada r e g a r d i n g t h e e s t a b l i s h m e n t of an a s s i s t a n c e proramme, and noted t h a t i t was u n f o r t u n a t e l y l i m i t e d t o one r e g i o n . The D e l e g a t e of Canada r e p l i e d t h a t t h e programme had been e s t a b l i s h e d t o a s s i s t developing S t a t e s and t h a t t h e p r o j e c t i n t h e ~Caribbean was b u t an e x t e n s i o n of an on-going p r o j e c t i n t h a t r e g i o n ; he wished t o a s s u r e t h e d e l e g a t i o n s t h a t t h e programme was n o t l i m i t e d t o t h a t r e g i o n and t h a t missions had been planned f o r o t h e r r e g i o n s such a s A f r i c a and A s i a . He a l s o mentioned t h a t t h e I n t e r n a t i o n a l A v i a t i o n Management T r a i n i n g I n s t i t u t e w a s a c c e s s i b l e t o a l l , without l i m i t a t i o n a s t o r e g i o n o r n a t i o n a l i t y . 15. The Delegate of Ghana s t a r e d t h a t A r t i c l e 10 of t h e Montreal Convention provided a broad framework f o r S t a t e s t o p r o v i d e p r e v e n t i v e measures, and s o b e l i e v e d t h a t some form of i n t e r n a t i o n a l Co-operative e f f o r t f o r t e c h n i c a l a s s i s t a n c e would be d e s i r a b l e . H i s d e l e g a t i o n was a l s o encouraged by t h e comments made by t h e Delegate of Canada and was convinced t h a t some s p e c i f i c p r o v i s i o n f o r organized a s s i s t a n c e would achieve t h e d e s i r e d o b j e c t i v e of enabling developing S t a t e s t o p a r t i c i p a t e e f f e c t i v e l y i n t h e common e f f o r t t o d e a l w i t h v i o l e n c e and unlawful a c t s of i n t e r n a t i o n a l p i r a c y against internat inoal c i v i l aviation. He acknowledged t h a t i n d i v i d u a l S t a t e s had t h e p r i m a r y r e s p o n s i b i l i t y , b u t s a i d t h a t t h e d i s c h a r g e o f t h i s r e s p o n s i b i l i t y should n o t b e negated by t h e i n c a p a c i t y o f c e r t a i n disadvantaged S t a t e s t o implement t h e s e measures. H i s d e l e g a t i o n t h e r e f o r e wished t o make t h e following p r o p o s a l f o r t h e c o n s i d e r a t i o n of t h e Conference: "that t h i s
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16. The Chairman adjourned t h e meeting by s t a t i n g t h a t t h e d i s c u s s i o n on p r e v e n t i v e measures would resume a t t h e following meeting. (The meeting adjourned a t 1230 h o u r s )
Not for Resale
--`,,```,,,,````-`-`,,`,,`,`,,`---
nonference r e s o l v e s t h a t c o n s i d e r i n g t h e p e c u l i a r s i t u a t i o n of certain developing c o u n t r i e s which a r e p a r t i e s t o t h i s Convention an i n t e r n a t i o n a l fund be e s t a b l i s h e d f o r t h e p r o v i s i o n of t e c h n i c a l , f i n a n c i a l and o t h e r m a t e r i a l forms of a s s i s t a n c e t o member S t a t e s which r e q u i r e them". H i s d e l e g a t i o n was r e q u e s t i n g t h a t i t s p r o p o s a l be r e f l e c t e d i n t h e d r a f t t o b e p r e s e n t e d by t h e S o v i e t D e l e g a t i o n and, i f t h e p r o p o s a l was a c c e p t a b l e , would f u r t h e r s u g g e s t The D e l e g a t e of Ecuador t h a t I C A O a c t a s a Co-ordinating body of such a fund. f i r m l y supported t h e p r o p o s a l f o r t h e e s t a b l i s h m e n t of an i n t e r n a t i o n a l fund, as h i s d e l e g a t i o n was i n f a v o u r of ensuring t h e p r o p e r co-operation and techncial assistance t o c e r t a i n States t o ensure t h a t e f f e c t i v e preventive measures were a p p l i e d . The D e l e g a t e of Niger a l s o agreed w i t h t h e s t a t e m e n t s made by t h e D e l e g a t e s of Ghana and E t h i o p i a proposing t h a t a r e s o l u t i o n b e adopted by t h e Conference w i t h a view t o providing a s s i s t a n c e t o S t a t e s which d i d n o t have t h e n e c e s s a r y r e s o u r c e s t o f u l f i l t h e i r o b l i g a t i o n s i n implementing p r e v e n t i v e s e c u r i t y measures. The D e l e g a t e of Cte d ' I v o i r e supported t h e p r o p o s a l t o encourage i n t e r n a t i o n a l co-operation i n t h i s a r e a t o a c h i e v e t h e g o a l s t o e l i m i n a t e t e r r o r i s m and e s t a b l i s h s a f e t y and s e c u r i t y , a s h i s d e l e g a t i o n b e l i e v e d i t was through i n t e r n a t i o n a l co-operation t h a t t h e i n t e r n a t i o n a l community could s o l v e t h e problems of i n t e r n a t i o n a l t e r r o r i s m . The D e l e g a t e of Kenya j o i n e d t h e d e l e g a t i o n s , p a r t i c u l a r l y of Ghana and Cte d'Ivoire, i n c a l l i n g upon t h e i n t e r n a t i o n a l community t o c o n s i d e r t h e p a r t i c u l a r l i m i t a t i o n s of some S t a t e s , saying t h a t h i s S t a t e d i d c o n s i d e r p r e v e n t i v e measures t o b e a p r i o r i t y , b u t w a s handicapped because of l a c k of H i s d e l e g a t i o n would s u p p o r t , i f n o t an equipment, f i n a n c i n g and t r a i n i n g . a d d i t i o n t o t h e S o v i e t r e s o l u t i o n , a s e p a r a t e r e s o l u t i o n c a l l i n g on i n t e r n a t i o n a l a s s i s t a n c e , t e c h n i c a l , f i n a n c i a l and material t o developing S t a t e s t o improve t h e i r a v i a t i o n s e c u r i t y , and t o e n s u r e p r e v e n t i v e measures and, a p p r e c i a t i n g t h e f a c t t h a t b i l a t e r a l a s s i s t a n c e had been o f f e r e d , wished The D e l e g a t e of Sweden was t o s e e t h e Co-ordinating r o l e undertaken by ICAO. of t h e view t h a t i t was p o s s i b l e t o connect a r e s o l u t i o n on t h e q u e s t i o n of t e c h n i c a l a s s i s t a n c e w i t h t h e more g e n e r a l r e s o l u t i o n on p r e v e n t i v e measures. H e n o t e d w i t h g r e a t i n t e r e s t t h e p r o p o s a l by t h e D e l e g a t e of Ghana t o i n s t i t u t e a fund, saying it w a s n o t p o s s i b l e t o t a k e a s t a n d on how t h e a s s i s t a n c e should b e made, b u t wished t o a s s u r e t h e Ghanian D e l e g a t i o n and o t h e r s who had spok'en on t h e s u b j e c t of t e c h n i c a l a s s i s t a n c e o f t h e f u l l s u p p o r t of t h e Swedish Delegat ion.
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DRAFT Ninth Meeting Commission o f t h e Whole
NINTH MEETING O THE COMMISSION O THE WHOLE F F (Tuesday, 16 February 1988, a t 1400 h o u r s )
Chairman:
AGENDA ITEM 9:
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Prevent i v e measures
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1. The Chairman having i n d i c a t e d t h a t d i s c u s s i o n would resume on p r e v e n t i v e measures, t h e D e l e g a t e of I n d i a s t a t e d t h a t h i s d e l e g a t i o n , recognizing t h e need f o r continuous and e f f e c t i v e implementation of p r e v e n t i v e measures a g a i n s t a c t s of unlawful i n t e r f e r e n c e , supported t h e p r o p o s a l p u t f o r t h by t h e S o v i e t D e l e g a t i o n c a l l i n g f o r t h e adoption of p r e v e n t i v e measures i n t h e form of a r e s o l u t i o n . S e v e r a l d e l e g a t i o n s echoed t h e i r approval of t h e S o v i e t p r o p o s a l , among them t h e Delegate of Costa Rica, who s t a t e d t h a t t h i s would complement t h e e x i s t i n g s t a n d a r d s and t h e Delegates of Madagascar and Senegal. The Delegate of E t h i o p i a r e i t e r a t e d t h a t h i s d e l e g a t i o n had proposed t h e adoption of a r e s o l u t i o n and would b e pleased t o s e e t h e d r a f t produced by t h e S o v i e t D e l e g a t i o n ; and t h e Delegate of M a l a w i was pleased t o s e e a consensus being achieved i n favour of t h i s o p t i o n . The D e l e g a t e of I r a n i n d i c a t e d t h a t h i s d e l e g a t i o n a l s o shared t h a t view and supported t h e i d e a of i n c l u d i n g t h e elements of i n t e r n a t i o n a l co-operation. The D e l e g a t e of Guinea a l s o supported t h e S o v i e t p r o p o s a l , s t a t i n g t h a t i f p r e v e n t i v e measures were e f f e c t i v e l y implemented, S t a t e s would be i n a b e t t e r p o s i t i o n t o i n c r e a s e t h e s a f e t y of i n t e r n a t i o n a l c i v i l a v i a t i o n , as d i d t h e D e l e g a t e o f ' t h e United Republic of Tanzania, who s t a t e d t h a t a l l e f f o r t s should be made t o develop p r e v e n t i v e measures f o r , i f t h e y were a p p l i e d uniformly and on a c o - o p e r a t i v e b a s i s by a l l S t a t e s , t h e e x i s t i n g laws would n o t b e broken. The D e l e g a t e of C h i l e commented t h a t i d e a l l y t h e r e should never b e a need t o apply p r e v e n t i v e measures, b u t as t h a t w a s n o t t h e c a s e , h i s d e l e g a t i o n wholly supported t h e c r i t e r i a c a l l i n g f o r p r e v e n t i v e measures and t h e r e f o r e b e l i e v e d t h a t t h e y should be o u t l i n e d i n a r e s o l u t i o n , adding t h a t any r e s o l u t i o n should b e submitted t o t h e D r a f t i n g Committee. The D e l e g a t e of P a k i s t a n voiced t h e o p i n i o n t h a t i f no such r e s o l u t i o n were under c o n s i d e r a t i o n , S t a t e s would n e v e r t h e l e s s be bound under A r t i c l e 1 t o implement p r e v e n t i v e measures t o bis prevent o f f e n c e s i n A r t i c l e 1, and as t h e proposed paragraph 1 - would be added t o A r t i c l e 1 , t h e o b l i g a t i o n t o t a k e n e c e s s a r y p r e v e n t i v e measures would a u t o m a t i c a l l y extend t o i n c l u d e t h e o f f e n c e s under t h a t paragraph. His d e l e g a t i o n voiced no o b j e c t i o n t o t h e adoption of a r e s o l u t i o n b u t p r e f e r r e d t h a t i t s t e x t b e very g e n e r a l .
2. The D e l e g a t e of Colombia remarked t h a t h e r d e l e g a t i o n favoured p r e v e n t i v e measures, t h e implementation of which should lead n o t o n l y t o a g r e a t l e v e l of s e c u r i t y a g a i n s t a c t s of v i o l e n c e b u t a l s o a g a i n s t a c t s which, though i n themselves n o t v i o l e n t , gave r i s e t o v i o l e n c e , such a s t h e t r a f f i c k i n g of n a r c o t i c s u b s t a n c e s o r i l l e g a l weapons. For t h i s r e a s o n , t h e
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Colombian D e l e g a t i o n deemed it very important t o e n v i s a g e development of p r e v e n t i v e measures. R e f e r r i n g t o t h e S o v i e t p r o p o s a l , t h e D e l e g a t e of Colombia summed up i t s t h r e e b a s i c p r i n c i p l e s which, s h e i n t i m a t e d , implied t h a t S t a t e s would endeavour t o t a k e p r e v e n t i v e measures. The D e l e g a t e of Poland mentioned t h r e e c a t e g o r i e s of p r e v e n t i v e measures, t h e f i r s t covering a l l measures t h a t a r e provided f o r i n t h e e x i s t i n g i n t e r n a t i o n a l i n s t r u m e n t s , i n c l u d i n g Annex 1 7 , t h e second t h a t covering a l l measures i n VIA Doc No. 26 and any o t h e r s t h a t d e l e g a t i o n s might wish t o make and which would u l t i m a t e l y b e approved by t h e Conference. H e was of t h e o p i n i o n t h a t t h e r e was a t h i r d c a t e g o r y , t h a t i s t h e co-operation among S t a t e s r e g a r d i n g e x e r c i s i n g t h e i r j u r i s d i c i t o n o r a p p l i c a t i o n of e x t r a d i t ion procedures and suggested t h a t t h e Conference might wish t o make some recommendations w i t h r e g a r d t o a l l t h r e e categories. The D e l e g a t e of I s r a e l s a i d t h a t h i s c o u n t r y had i n t h e p a s t introduced i n v a r i o u s forms a l i s t of s e c u r i t y measures t o b e implemented by a l l S t a t e s , and t h a t t h e s e p l a n s contained dozens of s e c u r i t y measures, t h e absence of any one of which could break t h e s e c u r i t y c h a i n . H i s delegation b e l i e v e d t h a t t h e t a k i n g of e f f e c t i v e prevent i v e measures and Co-operat i o n between a l l S t a t e s had a major r o l e i n combating t e r r o r i s m , and i n p r i n c i p a l supported t h e g e n e r a l i d e a of a r e s o l u t i o n . I t had d i f f i c u l t y , however, i n s u p p o r t i n g a r e s o l u t i o n mentioning o n l y some p r e v e n t i v e measures as i n d i c a t e d i n t h e S o v i e t p r o p o s a l , as i t f e l t t h a t t h e e x c l u s i o n of some p r e v e n t i v e measures could b e i n t e r p r e t e d as meaning t h a t t h e y were n o t important enough and could b e ignored. The D e l e g a t e of N i g e r i a b e l i e v e d t h a t i f p r e v e n t i v e measures were n o t implemented a t every s t a g e of i n t e r n a t i o n a l c i v i l a v i a t i o n , s e c u r i t y could be t h r e a t h e n e d because t h e s t r e n g t h of i n t e r n a t i o n a l a v i a t i o n s e c u r i t y w a s l i m i t e d t o t h e s t r e n g t h of i t s weakest l i n k . The D e l e g a t e of t h e United S t a t e s c a u t i o u s l y agreed t o t h e i d e a of a r e s o l u t i o n as h e r d e l e g a t i o n d i d n o t o b j e c t t o t h e Conference sending a s t r o n g s i g n a l r e g a r d i n g t h e importance of p r e v e n t i v e s e c u r i t y measures, b u t r e c a l l e d t h a t t h e r e a s o n a l l d e l e g a t i o n s were a t t h e Conference was f o r t h e purpose of adopting an i n t e r n a t i o n a l instrument a d d r e s s i n g a c t s of v i o l e n c e a t i n t e r n a t i o n a l a i r p o r t s .
3. The D e l e g a t e of Costa Rica agreed w i t h t h e D e l e g a t e of Venezuela who had s t a t e d a t t h e p r e v i o u s meeting t h a t t h e d r a f t r e s o l u t i o n should r e c o g n i z e t h e r o l e I C A O had played i n implementing t h e Assembly r e s o l u t i o n , emphazise t h e measures adopted and t h e f a c t t h a t ICAO had r e q u e s t e d S t a t e s which were a b l e t o p r o v i d e a s s i s t a n c e t o do s o , and as an example of such a i d r e f e r r e d t o t h e D e l e g a t e of Canadas opening remarks. The D e l e g a t e s of C h i l e and Mexico were a l s o in agreement t h a t t h e d r a f t r e s o l u t i o n should r e c o g n i z e t h e e f f o r t s t h a t had been made by ICAO through i t s v a r i o u s b o d i e s .
4. S e v e r a l d e l e g a t i o n s were of t h e o p i n i o n t h a t p r e v e n t i v e measures were a d e q u a t e l y covered i n s e v e r a l I C A O documents, among them t h e D e l e g a t e of Senegal, who f e l t t h a t ICAO had done a g r e a t d e a l i n t h e area of s e c u r i t y through t h e a d o p t i o n of Annex 1 7 , which was f l e x i b l e and could e a s i l y b e amended, and t h e S e c u r i t y Manual. H i s d e l e g a t i o n b e l i e v e d t h a t i f a r e s o l u t i o n were t o b e adopted, t h e Conference should examine whether i t was a p p r o p r i a t e and n e c e s s a r y t o propose new s e c u r i t y measures t h a t could p o s s i b l y b e used by t h e Council as a b a s i s f o r amending Annex 1 7 , as w e l l as examine t h e e f f o r t s made by S t a t e s i n implementation and should i n c l u d e implementation s i n c e t h i s w a s t h e problem, adding t h a t i f a l l s t a n d a r d s and recommended p r a c t i c e s of Annex 1 7 were implemented t h e g r e a t m a j o r i t y of o f f e n d e r s would be d e t e r r e d .
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The D e l e g a t e of t h e United Republic of Tanzania thought >some p r e v e n t i v e measures had been d e t a i l e d i n v a r i o u s annexes such as Annex 17 and manuals on unlawful i n t e r f e r e n c e . The D e l e g a t e of P a k i s t a n s a i d t h e S o v i e t p r o p o s a l included some p r e v e n t i v e measures covered i n Annex 17 and A r t i c l e 10 of t h e Montreal Convention. The D e l e g a t e of C h i l e b e l i e v e d t h a t p r e v e n t i v e measures were a l r e a d y covered i n A r t i c l e s 1 0 and 1 2 of t h e Montreal Convention, Annex 17 and t h e S e c u r i t y Manual, recognizing t h a t t h e p r o v i s i o n s i n A r t i c l e 10 of t h e Montreal Convention were g e n e r a l b u t n e v e r t h e l e s s mandatory, and d i d n o t f e e l t h a t i t would be n e c e s s a r y t o amend t h e Montreal Convention, as A r t i c l e 10 was c l e a r i n t h i s r e s p e c t and paragraph 1 of A r t i c l e 10 should b e a p p l i c a b l e i n r e s p e c t of t h o s e o f f e n c e s . The Delegate of Mexico r e i t e r a t e d t h a t A r t i c l e 1 0 of t h e Montreal Convention p e r f e c t l y covered p r e v e n t i v e measures and thought S t a t e s had a l r e a d y implemented t h o s e measures, and b e l i e v e d Annex 17 and t h e S e c u r i t y Manual gave s u f f i c i e n t guidance in t h i s a r e a . With r e g a r d t o d r a f t i n g a r e s o l u t i o n , w h i l e s h e d i d n o t f e e l it n e c e s s a r y , s h e would n o t oppose i t i f t h e m a j o r i t y were i n f a v o u r , b u t would l i k e to see i t k e p t g e n e r a l . The Delegate of I n d o n e s i a , b e l i e v i n g t h a t s e c u r i t y a t a i r p o r t s was t h e most important f a c t o r t o prevent a c t s of v i o l e n c e , w a s of t h e o p i n i o n t h a t A r t i c l e 10 o f t h e M o n t r e a l C o n v e n t i o n and Annex 17 had s u f f i c i e n t l y accommodated t h i s i s s u e . Due t o t h e t e c h n i c a l n a t u r e of p r e v e n t i v e measures, h e f e l t t h e y woufd b e s t b e accommodated i n t h e form of reviewing Annex 1 7 , b u t would n o t v o i c e any o b j e c t i o n s i f p r e v e n t i v e measures were r e f l e c t e d i n t h e adoption of a r e s o l u t i o n , i f widely acclaimed by t h e Conference.
5. S e v e r a l d e l e g a t i o n s commented on t h e importance t h e y a t t a c h e d t o t h e need f o r t e c h n i c a l a s s i s t a n c e i n t h e implementation of p r e v e n t i v e measures. There w a s s t r o n g support f o r t h e p r o p o s a l made by t h e D e l e g a t e of Ghana who had c a l l e d f o r t h e i n c l u s i o n of t e c h n i c a l a s s i s t a n c e f o r S t a t e s lacking t h e f i n a n c i a l and t e c h n i c a l r e s o u r c e s t o implement p r e v e n t i v e measures i n t h e r e s o l u t i o n and t h e e s t a b l i s h m e n t of a fund f o r t h i s purpose. Advocating t h e i r support were t h e D e l e g a t e s of Costa Rica, C h i l e , N i g e r i a and t h e United Republic of Tanzania, t h e l a t t e r favouring t h e i n c l u s i o n of s p e c i f i c a t i o n s f o r methods on how S t a t e s could c o n t r i b u t e t o t h i s m u l t i l a t e r a l fund, s o t h a t S t a t e s such a s h i s which lacked r e s o u r c e s b u t wished t o implement p r e v e n t i v e The measures could have a c c e s s t o m a t e r i a l means and much-needed p e r s o n n e l . Delegate of I n d i a s t r o n g l y supported t h e p r o p o s a l f o r i n c l u s i o n i n t h e S o v i e t r e s o l u t i o n o r a s e p a r a t e r e s o l u t i o n , t a k i n g i n t o c o n s i d e r a t i o n t h e comments and concerns of t h e D e l e g a t i o n s of Kenya, Ghana and Cte d I v o i r e . This support was echoed by t h e D e l e g a t e of Colombia, who b e l i e v e d S t a t e s wishing t o implement p r e v e n t i v e measures should have t h e n e c e s s a r y economic r e s o u r c e s t o A s h i s w a s a developing S t a t e , t h e do s o , and by t h e D e l e g a t e of Guinea. D e l e g a t e of Senegal supported t h i s i d e a and f e l t t h a t t h e Conference should g i v e some guidance, even i f a formal fund were n o t e s t a b l i s h e d , and t h a t co-operation should be through r e g i o n a l p r o j e c t s i n t h r e e phases: drawing up an i n v e n t o r y of needs i n v a r i o u s S t a t e s , f i n a n c i n g f o r equipping a i r p o r t s and t r a i n i n g p e r s o n n e l , and a s s i s t a n c e i n t h e d i s c h a r g e of o p e r a t i n g c o s t s .
6. The D e l e g a t e of Malawi a l s o f e l t t h a t S t a t e s must have t h e n e c e s s a r y r e s o u r c e s t o implement p r e v e n t i v e measures f o r them t o b e e f f e c t i v e , and t h a t it w a s c r u c i a l t h a t t h e q u e s t i o n of t e c h n i c a l a s s i s t a n c e b e i n c o r p o r a t e d e i t h e r He s t a t e d t h a t t h e main i n t h e Soviet r e s o l u t i o n o r i n a separate resolution. concern w a s t h a t because of t h e tendency of some donor S t a t e s toward a
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b i l a t e r a l s y s t e m of a i d , some S t a t e s would have d i f f i c u l t y i n convincing t h e i r r e s p e c t i v e planning a u t h o r i t i e s t o r e l e a s e funds f o r a v i a t i o n s e c u r i t y , when A s an example h e s p e c i f i e d h i s own f a c e d w i t h more p r e s s i n g concerns. governments s i t u t a t i o n where it would be u n r e a l i s t i c f o r t h e planning a u t h o r i t i e s t o approve such funding when some s e c t o r of t h e p o p u l a t i o n was without w a t e r , and t h u s appealed t o t h o s e p r e s e n t t o s e r i o u s l y c o n s i d e r t e c h n i c a l a s s i s t a n c e s o t h a t p r e v e n t i v e measures could b e e s t a b l i s h e d a t i n t e r n a t i o n a l a i r p o r t s . The D e l e g a t e of Madagascar s t a t e d t h a t Madagascar had s i n c e 1986 made l a r g e improvements a t t h e i n t e r n a t i o n a l a i r p o r t of Antananarivo t o improve s e c u r i t y and s a f e t y measures, p l a c i n g a burden on t h e n a t i o n a l budget i n view of t h e economic d i f f i c u l t i e s h i s c o u n t r y was f a c i n g . In a d d i t i o n t o b i l a t e r a l co-operation, he considered i t e s s e n t i a l t o e s t a b l i s h an i n t e r n a t i o n a l mechanism f o r a s s i s t a n c e and co-operation i n t h e implementation H i s d e l e g a t i o n f u l l y supported t h e p r o p o s a l made by of p r e v e n t i v e measures. Kenya f o r t h e c r e a t i o n of an i n t e r n a t i o n a l fund, and was open t o any p r o p o s a l s The Delegate of Mexico s a i d h e r r e g a r d i n g t h e forumulation of such an i d e a . d e l e g a t i o n could a c c e p t a r e s o l u t i o n t o t h i s e f f e c t i f it were recognized t h a t t h i s i s s u e had p r e v i o u s l y been examined by t h e Council on t h e i n i t i a t i v e of Guatemala w i t h t h e support of Mexico. The D e l e g a t e of France s t a t e d t h a t p r e v e n t i v e measures m u s t b e a p p l i e d a t a l l a i r p o r t s and p o i n t e d t o an a s s i s t a n c e programme France had launched i n two phases i n 12 A f r i c a n S t a t e s members of ASECNA, t h e f i r s t almost completed and t h e second beginning i n A p r i l , i n d i c a t i n g t h e importance France a t t a c h e d t o s e c u r i t y and p r e v e n t i v e measures. The D e l e g a t e of t h e United S t a t e s s a i d t h a t s e v e r a l d e l e g a t i o n s had r a i s e d important i s s u e s i n t h e g e n e r a l c o n t e x t of p r e v e n t i o n and t e c h n i c a l a s s i s t a n c e and s h e s t a t e d t h a t h e r country w a s a c t i v e l y working w i t h o t h e r S t a t e s t o exchange e x p e r t i s e on t r a i n i n g , equipment and procedures f o r b e s t p r e v e n t i n g crimes a g a i n s t c i v i l a v i a t i o n . She b e l i e v e d t h e r e w a s a p l a c e i n I C A O f o r e x p l o r i n g t h e b e s t ways t o e n s u r e t h a t S t a t e s used r e s o u r c e s t o e n s u r e t h e i r i n t e r n a t i o n a l o b l i g a t i o n s were c a r r i e d o u t , b u t thought t h a t perhaps t h i s was n o t germane t o t h e t a s k a t hand and h e r d e l e g a t i o n had n o t come prepared t o discuss these issues in d e t a i l . She b e l i e v e d t h e s u b j e c t t o o important t o be g i v e n s u p e r f i c i a l c o n s i d e r a t i o n and suggested t h a t i t might b e b e s t i f an a p p r o p r i a t e ICAO body such as t h e S e c r e t a r i a t o r t h e Council c o n s i d e r t h e s u b j e t i n g r e a t e r depth.
7. The D e l e g a t e of Madagascar b e l i e v e d t h a t t h e d e s i g n a t i o n of I C A O as t h e co-ordinator of a s p e c i a l a s s i s t a n c e fund would b e a g u a r a n t e e of competence and i n t e g r i t y i n t h i s r e s p e c t , and t h i s view was supported by t h e Delegates of N i g e r i a and t h e United Republic of Tanzania. The D e l e g a t e of Senegal b e l i e v e d t h e r e were mechanisms i n e x i s t a n c e such a s t h e UNDP, and t h e ICAO T e c h n i c a l A s s i s t a n c e Bureau which had a l r e a d y done a g r e a t d e a l i n t h i s a r e a . The D e l e g a t e of F r a n c e , however, drew t h e a t t e n t i o n of t h e Conference t o t h e need t o avoid i n f r i n g i n g on t h e j u r i s d i c t i o n of t h e S e c r e t a r y General and He f e l t v a r i o u s I C A O b o d i e s which d e a l t w i t h s e c u r i t y , p a r t i c u l a r l y t h e U I C . it important n o t t o commit t h e f i n a n c i a l b o d i e s of ICAO a s t h e Conference d i d n o t have t h e mandate t o do s o .
8. The S e c r e t a r y General drew t e c h n i c a l a s s i s t a n c e i n t h e f i e l d of I C A O T e c h n i c a l A s s i s t a n c e Bureau and national security-oriented projects

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a t t e n t i o n t o t h e c u r r e n t s t a t u s of I C A O s aviation security. H e indicated t h a t the t h e Regional Off i c e s had implemented many and one l a r g e p r o j e c t i n Asia, and t h a t
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I C A O was n e g o t i a t i n g w i t h t h e UNDP r e g a r d i n g a d d i t i o n a l p r o j e c t s . A t t h e same t i m e , many b i l a t e r a l t e c h n i c a l a s s i s t a n c e p r o j e c t s had been implemented, some d i r e c t l y administered through ICAO. The r e g u l a r programme of I C A O w a s a l s o a c t i v e i n t h i s r e s p e c t , having organized seminars i n Saudi Arabia and Malaysia d e a l i n g w i t h s e c u r i t y , and he now thanked t h e s e d e l e g a t i o n s . H e noted t h a t t h e e s t a b l i s h m e n t of a v o l u n t a r y fund f o r t e c h n i c a l a s s i s t a n c e being d i s c u s s e d by t h e Conference had p r e v i o u s l y been d i s c u s s e d by t h e Council, b u t it had questioned t h e wisdom of e s t a b l i s h i n g y e t a n o t h e r v o l u n t a r y fund as t h e m a j o r i t y of donor S t a t e s p r e f e r r e d t o channel t h e i r c o n t r i b u t i o n s through t h e U D o r b i l a t e r a l assistance. NP The I C A O S e c r e t a r i a t and e s p e c i a l l y t h e T e c h n i c a l A s s i s t a n c e Bureau were a c t i v e l y involved i n t h e implementation of t h e p r o v i s i o n s of t h e Tokyo, The Hague and Montreal Conventions, Annex 17 and t h e S e c u r i t y Manual, w i t h i n t h e l i m i t a t i o n s of e x i s t i n g r e s o u r c e s , and he considered t h a t it would b e d e s i r a b l e i f t h e Conference were t o adopt a r e s o l u t i o n as a c l e a r demonstration of t h e p o l i t i c a l w i l l of S t a t e s t o r e c e i v e more a s s i s t a n c e from t h e funding i n s t i t u t i o n s , such a s UWP, as he f e l t t h a t such a r e s o l u t i o n would assist ICAO i n i t s n e g o t i a t i o n s w i t h such s o u r c e s .
10. The Chairman t h e n c a l l e d upon t h e Chairman of t h e D r a f t i n g Committee, who expressed h i s g r a t i t u d e t o t h e members of t h e D r a f t i n g Committee who had approached t h e t a s k i n a v e r y c o n s t r u c t i v e manner and t o a l l who had a s s i s t e d H e a l s o thanked t h e Legal Committee and t h e i n t h e Committee's p r o g r e s s . S e c r e t a r i a t who had provided t h e d r a f t t e x t . The i n i t i a l terms of r e f e r e n c e f o r t h e D r a f t i n g Committee were t h a t i t examine t h e f i n a l c l a u s e s i n l i g h t of t h e t i t l e and preamble, and i n commencing i t s work, it had noted t h a t t h e p r e s e n t a t i o n of t h i s r e p o r t w a s i n no way f i n a l as i t could b e a f f e c t e d by subsequent d e c i s i o n s of t h e Conference, r e l a t i n g t o t h e s u b s t a n c e of t h e bis. With t h i s i n mind, t h e D r a f t i n g protocol, in particular A r t i c l e 1 Committee had decided t h a t i t should commence work by c o n s i d e r i n g t h e t i t l e as t h e fundamental s t a r t i n g p o i n t , t h e n c o n s i d e r t h e f i n a l c l a u s e s and o n l y t h e n bis, r e t u r n t o t h e preamble, which was c l o s e l y l i n k e d w i t h A r t i c l e 1 - and a s i t s f i n a l t a s k c o n s i d e r any o t h e r c l a u s e s . I n reviewing t h e t i t l e , t h e D r a f t i n g Committee had concluded t h a t it should r e f l e c t t h e P r o t o c o l and had decided upon a p r o t o c o l supplementary t o t h e Convention. With r e f e r e n c e t o t h e word I l a t 11 which appeared i n s q u a r e b r a c k e t s , t h e Chairman noted t h a t t h i s had been bis; included s t r i c t l y on t h e b a s i s t h a t t h e Conference might a l t e r A r t i c l e 1 i t might be n e c e s s a r y t o look a t t h a t word i n l i g h t of d e c i s i o n s t a k e n regarding t h a t A r t i c l e . The Committee had a l s o considered t h e f i n a l c l a u s e s and would d i s c u s s t h e s e when t h e t e x t had been considered by t h e d e l e g a t i o n s .
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9. The Chairman summed up t h e d i s c u s s i o n by s t a t i n g t h a t a l l S t a t e s a t t a c h e d c o n s i d e r a b l e importance t o t h e e s t a b l i s h m e n t and implementation of p r e v e n t i v e measures and were determined t o promote t h e i r e s t a b l i s h m e n t . He noted t h a t many d e l e g a t i o n s had mentioned t h e importance of a s s i s t a n c e i n t h e implementation of p r e v e n t i v e measures, and had suggested t h a t an a s s i s t a n c e fund b e e s t a b l i s h e d f o r t h i s purpose. A consensus seemed t o have formed f o r a r e s o l u t i o n t o b e adopted by t h e Conference r a t h e r t h a n p r e v e n t i v e measures being included i n an a r t i c l e of t h e d r a f t p r o t o c o l . H e thanked t h e D e l e g a t i o n of t h e Union of S o v i e t S o c i a l i s t Republics f o r i t s co-operation and suggested t h a t it hold i n f o r m a l c o n s u l t a t i o n s w i t h any o t h e r i n t e r e s t e d d e l e g a t i o n s , t a k i n g i n t o c o n s i d e r a t i o n t h e v a r i o u s views, and submit t h e t e x t t o t h e Conference f o r approval.
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The Chairman i n d i c a t e d t h a t - t h e D r a f t i n g Committee had made p r o g r e s s and some o u t s t a n d i n g p o i n t s were s t i l l being c o n s i d e r e d , b u t i t had turned i t s a t t e n t i o n t o A r t i c l e 1 which was linked w i t h t h e f i n a l c l a u s e s , and would t h e n t u r n i t s a t t e n t i o n t o t h e s u b s t a n c e of A r t i c l e 2, A r t i c l e 1 - and t h e preamble. bis The Chairman c o n g r a t u l a t e d t h e Chairman of t h e D r a f t i n g Committee and i t s members f o r t h e s i g n i f i c a n t p r o g r e s s t h e y had made i n a l i m i t e d amount of t i m e and i n v i t e d quest i o n s o r o b s e r v a t i o n s on t h e work of t h e D r a f t i n g Committee.
11. The D e l e g a t e of France w a s d e e p l y concerned as t o why a corrigendum had been i s s u e d i n r e s p e c t of t h e French t e x t t h a t had a l t e r e d "dans" t o '(aux", n o t i n g t h a t "dans" had been used i n v a r i o u s t e x t s such a s t h e t e x t adopted by t h e Legal Committee, and had always served as a r e f e r e n c e f o r t h e work of h i s government and i t was on t h i s b a s i s t h a t h i s government had e s t a b l i s h e d i t s position. He r e q u e s t e d t h a t t h e French t i t l e be r e v e r t e d back t o i t s o r i g i n a l form, with t h e u n d e r s t a n d i n g t h a t "dans" remain i n b r a c k e t s . The Chairman r e a s s u r e d t h e D e l e g a t e of France t h a t t h i s q u e s t i o n would be r e s o l v e d .
12. The D e l e g a t e of Spain commented on t h e l a s t l i n e of t h e t i t l e , s u g g e s t i n g t h a t "signed a t Montreal" should appear as "done a t Montreal" as a t t h e end of t h e Conference t h e f i n a l a c t would b e signed and o n l y t h o s e d e l e g a t i o n s which had t h e a u t h o r i t y t o do s o would s i g n t h e p r o t o c o l . The Executive S e c r e t a r y r e p l i e d t h a t i n t h e t i t l e of t h e Montreal Convention as w e l l an i n o t h e r p r o t o c o l s "signed" had been used. The Chairman r e f e r r e d t h e m a t t e r t o t h e D r a f t i n g Committee.
13. With r e g a r d t o A r t i c l e 1 b i s , t h e D e l e g a t e of Colombia b e l i e v e d t h e r e were two p o i n t s which t h e Conference had n o t y e t r e s o l v e d , one t h e i n c l u s i o n of t h r e a t , t h e o t h e r i f "or i s l i k e l y t o endanger" should b e d e l e t e d ; s h e asked f o r c l a r i f i c a t i o n as t o whether t h e Conference o r t h e D r a f t i n g Committee would r e s o l v e t h i s , as s h e f e l t t h e s e were beyond t h e scope of t h e D r a f t i n g Committee. The Chairman explained t h a t because of t h e t i m e c o n s t r a i n t s t h e Conference had c o l l e c t i v e l y agreed t o ask t h e D r a f t i n g Committee t o a d v i s e it on i s s u e s n o t y e t f i n a l i z e d , and a s s u r e d him t h a t t h e D r a f t i n g Committee was s u b j e c t t o t h e a u t h o r i t y of t h e Conference and whatever c o n c l u s i o n s reached would b e submitted t o i t f o r approval.
14. I n c o n g r a t u l a t i n g t h e Chairman of t h e D r a f t i n g Committee, t h e D e l e g a t e of Venezuela s t a t e d t h a t h e r d e l e g a t i o n supported t h e t i t l e of t h e p r o t o c o l submitted by t h e D r a f t i n g Committee and t h a t any of t h e d e f i n i t i o n s t h a t had been c o n s i d e r e d by t h e Conference would b e a c c e p t a b l e . She a l s o p o i n t e d out t h a t "signed a t Montreal" appeared as "done a t Montreal" i n t h e Spanish t e x t and r e q u e s t e d t h a t t h i s be a l i g n e d a c c o r d i n g l y .
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DRAFT Tenth Meeting Commission of t h e Whole
TENTH MEETING O THE COMMISSION O THE WHOLE F F
(Wednesday, 17 February 1988, a t 1000 h o u r s )
AGENDA ITEM 9: CONSIDERATION O THE DRAFT INSTRUMENT F
1. A f t e r t h e Chairman b r i e f l y o u t l i n e d t h e morning's work programme, d i s c u s s i o n resumed on t h e i s s u e of j u r i s d i c t i o n and e x t r a d i t i o n . Those who were s a t i s f i e d with t h e t e x t a s d r a f t e d included t h e Delegates of A u s t r a l i a , Ecuador, Madagascar and Yugoslavia. The D e l e g a t e s of A u s t r a l i a and Madagascar favoured t h e e x i s t i n e : t e x t because i t emphasized t h e t e r r i t o r i a l n a t u r e of t h e o f f e n c e s , w h i l e t h e D e l e g a t e of Ecuador b e l i e v e d it would be i n a p p r o p r i a t e t o e s t a b l i s h a n e t of competing j u r i s d i c t i o n s as would b e p o s s i b l e i f t h e t e x t ~were changed s o t h a t more S t a t e s were given j u r i s d i c t i o n .
v
3. The D e l e g a t e of Panama a l s o p r e f e r r e d t h a t j u r i s d i c t i o n be extended t o i n c l u d e t h e S t a t e of r e g i s t r y and t h e S t a t e of t h e o p e r a t o r of a leased a i r c r a f t a s w e l l a s t h e S t a t e of n a t i o n a l i t y of t h e v i c t i m , i n o r d e r t o c r e a t e i n t h e P r o t o c o l t h e same e x t e n t of j u r i s d i c t i o n t o be found i n t h e Montreal Convent ion.
4. The D e l e g a t e of France explained t h a t due t o informal c o n s u l t a t i o n s w i t h o t h e r D e l e g a t e s , t h e views presented by h i s Delegation i n V I A Doc No. 14 had changed somewhat. The c o n s u l t a t i o n s had shown him t h a t A r t i c l e 5 of t h e Montreal Convention d i d n o t d e a l w i t h e x t r a d i t i o n b u t w i t h S t a t e s ' o b l i g a t i o n t o e s t a b l i s h j u r i s d i c t i o n . The r e q u e s t e d S t a t e could choose t o which S t a t e it would g r a n t e x t r a d i t i o n and t h i s could b e one of t h e S t a t e s o b l i g e d t o e s t a b l i s h j u r i s d i c t i o n by A r t i c l e 5 , paragraph 1 o r i t could a l s o b e t h e S t a t e o f n a t i o n a l i t y of t h e o f f e n d e r o r t h e v i c t i m . The French Delegation t h e r e f o r e found t h e d r a f t of paragraph 2 - a c c e p t a b l e b u t wished t o s e e d e l e t e d t h e bis r e f e r e n c e t o sub-paragraph ( a ) , so t h a t t h e amended t e x t would read "and it does n o t e x t r a d i t e him pursuant t o A r t i c l e 8 t o any of t h e S t a t e s mentioned i n paragraph 1 of t h i s A r t i c l e " . T h i s p r o p o s a l w a s supported by t h e D e l e g a t e s of I r e l a n d , Japan and Togo. The Delegate of t h e United S t a t e s b e l i e v e d i t would be more c o n s i s t e n t w i t h t h e Montreal Convention t o i n c l u d e a r e f e r e n c e t o t h e o t h e r S t a t e s l i s t e d i n A r t i c l e 5 , paragraph 1, because a i r c r a f t had a s p e c i a l s t a t u s compared t o o t h e r p r o p e r t y on an a i r p o r t and s o t h e S t a t e of r e g i s t r y o r t h e S t a t e of t h e o p e r a t o r of an a i r c r a f t had a s p e c i a l i n t e r e s t . The D e l e g a t e s of Japan and Togo r e i t e r a t e d t h i s view, b e l i e v i n g t h a t a i r c r a f t n o t i n s e r v i c e Copyright International Civil Aviation Organization should have t h e same p r o t e c t i o n a s a i r c r a f t i n f l i g h t . Provided by IHS under license with ICAO
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The D e l e g a t e of Switzerland p r e f e r r e d t h e s o l u t i o n of changing t h e bis t e x t by d, e l e t i n g from paragraph 2 - t h e words " t o t h e S t a t e mentioned i n paragraph 1 ( a ) of t h i s A r t i c l e " , a s o l u t i o n t h a t supported t h e p r o p o s a l s made by t h e -French Delegation i n VIA Doc No. 14. The Swiss Delegation f e l t t h a t A r t i c l e 5 of t h e Montreal Convention g r e a t l y r e s t r i c t e d e x t r a d i t i o n and it d i d n o t wish t o s e e t h i s r e i n f o r c e d by t h e P r o t o c o l .
.. z
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5. The D e l e g a t e of Venezuela could not s u p p o r t t h e amendment suggested by t h e D e l e g a t e of France on t h e grounds t h a t e l i m i n a t i n g sub-paragraph ( a ) would mean extending j u r i s d i c t i o n t o S t a t e s t h a t had n o t h i n g t o do w i t h t h e o f f e n c e s c o n s i d e r e d by t h e P r o t o c o l s i n c e t h e s e S t a t e s had been included i n t h e Montreal Convention because of t h e i r r e l a t i o n t o a i r c r a f t and n o t t o a i r p o r t s . The D e l e g a t e of Venezuela agreed w i t h t h e D e l e g a t e of F r a n c e , however, i n t h a t t h e y were e s t a b l i s h i n g j u r i s d i c t i o n and t h a t e x t r a d i t i o n w a s a m a t t e r f o r States t o decide. The D e l e g a t e s of I n d i a , Colombia and Mexico shared t h e view of t h e D e l e g a t e of Venezuela, agreeing t h a t t h e t e x t should remain a s d r a f t e d .
6. The D e l e g a t e of t h e Republic of Korea supported t h e d r a f t s i n c e it gave j u r i s d i c t i o n t o t h e S t a t e where t h e o f f e n c e w a s committed, b u t commented t h a t if t h e concept of t h r e a t were included as an o f f e n c e i n t h e P r o t o c o l , t h e n it might n o t b e n e c e s s a r y t o l i m i t t h e scope of j u r i s d i c t i o n t o paragraph 1 ( a ) of A r t i c l e 5 s i n c e t h e t h r e a t could b e made i n a t h i r d c o u n t r y . The D e l e g a t e of t h e Republic of Korea suggested t h e n t h a t t h e t e x t might b e improved i f it were t o i n c l u d e a l l paragraphs of A r t i c l e 5.
The D e l e g a t e of C h i l e r e i t e r a t e d h i s s t a n d t h a t t h e P r o t o c o l remain as d r a f t e d because t h e t e x t w a s adequate and d i d n o t c r e a t e t o o broad a f i e l d f o r j u r i s d i c t i o n and e x t r a d i t i o n . He p o i n t e d o u t t h a t t h e t e x t o f paragraph 1 bis had n o t y e t been approved, and t h a t i f it were decided t o . i n c l u d e a i r c r a f t n o t i n s e r v i c e , t h e n i t could be d e s i r a b l e t o add t o paragraph 2 & b a r e f e r e n c e t o t h e S t a t e of r e g i s t r y of an a i r c r a f t , t h a t i s , a r e f e r e n c e t o sub-paragraph ( b )
7.
8. The D e l e g a t e of I t a l y , r e f e r r i n g t o t h e s t a t e m e n t made by t h e Delegate of F r a n c e , r e i t e r a t e d t h e view t h a t i t was S t a t e s o b l i g a t i o n t o e s t a b l i s h j u r i s d i c t i o n and reminded D e l e g a t e s t h a t A r t i c l e 5, paragraph 3 of t h e Montreal Convention s t a t e d t h a t t h e Convention d i d n o t exclude any c r i m i n a l j u r i s d i c t i o n e x e r c i s e d i n accordance w i t h n a t i o n a l laws. The D e l e g a t e of I t a l y a l s o observed t h a t i f a i r c r a f t n o t i n s e r v i c e were included i n paragraph 1 t h e n t h e amendment a s proposed by France o r a t l e a s t t h e a d d i t i o n of The D e l e g a t e of sub-paragraph ( b ) t o paragraph 2 b i s might b e a p p r o p r i a t e . Greece a l s o proposed t h i s a d d i t i o n i n o r d e r t o i n c l u d e t h e i n t e r e s t s of t h e S t a t e of r e g i s t r y of an a i r c r a f t n o t i n s e r v i c e as d i d t h e D e l e g a t e of Senegal, The D e l e g a t e s of I t a l y , Greece, who f e l t i t would be a r e a s o n a b l e compromise. and Senegal each expressed t h e w i l l i n g n e s s , however, t o a c c e p t t h e t e x t as d r a f t e d i n t h e hope of a t t a i n i n g u n i v e r s a l a p p l i c a b i l i t y and a c c e p t a n c e of t h e Protoco 1.
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9. The Chairman expressed h i s p l e a s u r e a t s e e i n g t h a t many D e l e g a t i o n s were being f l e x i b l e and t h a t t h e r e was a g e n e r a l concern t o r e a c h a consensus. H e r e p e a t e d t h e summary he had made d u r i n g t h e previous meeting, l i s t i n g t h e s o l u t i o n s t h a t seemed t o b e most b r o a d l y s u p p o r t e d , namely, t h e r e t e n t i o n of t h e t e x t a s it was o r broadening t h e t e x t t o c o v e r c e r t a i n t y p e s of j u r i s d i c t i o n i n A r t i c l e 5 b u t n o t a l l of them, depending on whether o r n o t a i r c r a f t n o t i n s e r v i c e were included i n t h e P r o t o c o l . He observed a growing support f o r t h e i n c l u s i o n of sub-paragraph ( b ) b u t noted t h a t i t would be n e c e s s a r y t o w a i t f o r t h e f i n a l t e x t of paragraph 1 - b e f o r e making a bis d e c i s i o n on t h i s m a t t e r . The Chairman asked once a g a i n t h a t D e l e g a t i o n s resume c o n s u l t a t i o n s t o t r y t o r e s o l v e d i f f e r e n c e s and s a i d t h a t when some r e s u l t s Copyright International Civil Aviation Organization Provided by IHS were achieved, under license with ICAO t h e d i s c u s s i o n of t h i s i s s u e would resume.
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DRAFT
Tenth Meeting Commission of t h e Whole
10. I n response t o t h e P r e s i d e n t ' s i n v i t a t i o n , t h e D e l e g a t e of t h e Union of S o v i e t S o c i a l i s t Republics r e p o r t e d t h a t a s m a l l s t u d y group r e p r e s e n t i n g a broad range of D e l e g a t i o n s had been e s t a b l i s h e d .and had produced a d r a f t r e s o l u t i o n on p r e v e n t i v e measures. T h i s d r a f t r e s o l u t i o n was being t r a n s l a t e d and, when ready, would be immediately d i s t r i b u t e d t o D e l e g a t e s .
11. The D e l e g a t e of t h e United Kingdom, speaking as t h e Chairman of t h e D r a f t i n g Committee, t h e n introduced t h e d r a f t f i n a l c l a u s e s of t h e P r o t o c o l , drawing D e l e g a t e s ' a t t e n t i o n t o V I A Doc No. 31. He explained t h a t A r t i c l e I V had been d e l e t e d and i t s s u b s t a n c e t r a n s f e r r e d t o A r t i c l e I , t h e t e x t of which would b e a v a i l a b l e l a t e r . He pointed out t h a t d a t e s had y e t t o be i n s e r t e d i n A r t i c l e V , and w i t h r e f e r e n c e t o A r t i c l e V I , t h e D r a f t i n g Committee b e l i e v e d t h e wording t o r e p r e s e n t t h e views of t h e Commission of t h e Whole as t o t h e c o r r e c t r e l a t i o n s h i p between t h e P r o t o c o l and t h e Montreal Convent ion i n t h a t any S t a t e could r a t i f y t h e P r o t o c o l b u t t o do s o must a l s o s u b s c r i b e t o t h e Montreal Convention. H e noted t h a t t h e D r a f t i n g Committee had d e p a r t e d i n one r e s p e c t from t h e Montreal Convention i n t h a t I C A O had been added as a Depositary. A r t i c l e VII, a l t h o u g h d i f f e r e n t i n s t y l e from A r t i c l e 15, paragraphs 3 and 4 of t h e Montreal Convention, was t h e i r e q u i v a l e n t i n terms of when t h e P r o t o c o l w a s t o come i n t o f o r c e , and t h e number of s i g n a t o r y S t a t e s r e q u i r e d f o r t h i s was a l s o accepted by t h e D r a f t i n g Committee. Article V I I I , matching A r t i c l e 6 d e a l i n g w i t h a c c e s s i o n , and A r t i c l e I X d e a l i n g w i t h d e n u n c i a t i o n , were a l s o thought by t h e D r a f t i n g Committee t o match t h e d e s i r e of t h e Commission of t h e Whole a s t o t h e r e l a t i o n s h i p between t h e P r o t o c o l and t h e Convention, namely t h a t a p a r t y might denounce t h e P r o t o c o l a l o n e and remain p a r t y t o t h e Convention, b u t i f a p a r t y were t o denounce t h e Convention it would a l s o be denouncing t h e Convention as supplemented by t h e P r o t o c o l .
12. The D e l e g a t e of Niger began t h e d i s c u s s i o n on t h e d r a f t f i n a l c l a u s e s by commenting t h a t having seen t h e work produced by t h e D r a f t i n g Committee, he would n o t p r e s s f o r c o n s i d e r a t i o n of h i s D e l e g a t i o n ' s p r o p o s a l s as p r e s e n t e d i n VIA Doc No. 4. O t h e s u b j e c t of D e p o s i t a r i e s , t h e Delegate of Niger wished t o n have c l a r i f i e d how t h e D e p o s i t a r i e s had been chosen and t h e number of S t a t e s established. He a l s o enquired about t h e d i f f e r e n c e i n t h e o r d e r of t h e names of t h e d e p o s i t a r y S t a t e s i n t h e d i f f e r e n t language v e r s i o n s of t h e d r a f t f i n a l clauses. The D e l e g a t e of Malawi pointed out t h a t t h e r e were d i f f e r e n t ways of i n t e r p r e t i n g how t h e i n s t r u m e n t s of r a t i f i c a t i o n were t o be d e p o s i t e d , depending on how A r t i c l e V I were r e a d , t h a t i s , t h e word "and" could b e seen as r e q u i r i n g S t a t e s t o d e p o s i t instruments of r a t i f i c a t i o n w i t h a l l of t h e D e p o s i t a r i e s , n o t j u s t w i t h one of them. He c i t e d a s i t u a t i o n where h i s government had d e p o s i t e d an instrument of r a t i f i c a t i o n w i t h t h r e e D e p o s i t a r i e s r e s u l t i n g i n t h e e s t a b l i s h m e n t of t h r e e d i f f e r e n t d a t e s on which t h e instrument was t o t a k e e f f e c t , a s i t u a t i o n which he f e l t must c r e a t e loopholes i n t h e l e g a l system. The D e l e g a t e of Malawi suggested t h a t t h e p h r a s e "one of t h o s e D e p o s i t a r i e s " be added f o r c l a r i t y . The D e l e g a t e of t h e Republic of Korea put f o r t h t h e s u g g e s t i o n t h a t t h e r e be o n l y one D e p o s i t a r y f o r t h e P r o t o c o l and t h a t f o r e f f i c i e n c y and convenience i t be ICAO. The Executive S e c r e t a r y , D r . M . Milde, explained t h a t t h e p r e s e n t procedure f o r d e p o s i t i n g i n s t r u m e n t s of r a t i f i c a t i o n was an e s t a b l i s h e d i n t e r n a t i o n a l p r a c t i c e which had f i r s t been developed i n 1963. What w a s meant i n A r t i c l e V I w a s t h a t S t a t e s could d e p o s i t t h e i r i n s t r u m e n t s w i t h one of t h e
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D e p o s i t a r i e s , i n c l u d i n g ICAO i n t h i s c a s e , o r , as some S t a t e s wished, w i t h a l l of them. I f S t a t e s chose t o d e p o s i t an instrument w i t h more t h a n one D e p o s i t a r y , t h e d i f f e r e n t d a t e s of e n t r y i n t o f o r c e would n o t c r e a t e l e g a l d i f f i c u l t i e s s i n c e i n i n t e r n a t i o n a l p r a c t i c e i t would be t h e f i r s t d a t e w i t h whichever D e p o s i t a r y was involved t h a t would determine t h e a p p l i c a b i l i t y of t h e On t h e s u b j e c t of changing t h e wording of t h e A r t i c l e , t h e instrument. Chairman of t h e D r a f t i n g Committee wished t o make c l e a r t h a t s i n c e t h e y had followed i n t e r n a t i o n a l p r a c t i c e , t h e y did n o t f e e l f r e e t o add t h e word "one" i n r e f e r e n c e t o t h e number of D e p o s i t a r i e s . I n a d d i t i o n , he explained t h a t as t h e y were c o n s t r u c t i n g a supplementary P r o t o c o l , it was n e c e s s a r y t o f o l l o w t h e Convention a s much a s p o s s i b l e and t h a t s i n c e t h e Convention c a l l e d f o r t h r e e D e p o s i t a r i e s , i t would be i n a p p r o p r i a t e t o have o n l y one f o r t h e P r o t o c o l . The a d d i t i o n of I C A O a s a D e p o s i t a r y had, however, been c o n s i d e r e d u s e f u l . In r e p l y t o t h e query of t h e D e l e g a t e of Niger, t h e Executive S e c r e t a r y , D r . M. Milde, noted t h a t t h e d i f f e r e n t language v e r s i o n s of t h e d r a f t d i d , indeed, d i f f e r i n terms of t h e o r d e r of t h e names of t h e d e p o s i t a r y S t a t e s and t h a t t h i s was because each a u t h e n t i c t e x t observed t h e a l p h a b e t i c a l o r d e r of t h a t language.
13. The D e l e g a t e of t h e Republic of Korea commented on t h e s u g g e s t i o n made by t h e D e l e g a t e of Niger i n V I A Doc No. 4 , a g r e e i n g w i t h t h e i d e a t o e l i m i n a t e s e v e r a l A r t i c l e s of t h e d r a f t d e a l i n g w i t h r a t i f i c a t i o n , a c c e s s i o n , d e n u n c i a t i o n , and s o o n , by s t a t i n g i n A r t i c l e V I 1 1 t h a t t h e p r o v i s i o n s c o n t a i n e d i n t h e Convention r e l a t i n g t o t h e s e s u b j e c t s were a l s o v a l i d f o r t h e I n r e p l y , t h e Chairman of t h e D r a f t i n g Committee e x p l a i n e d t h a t t h e Protocol. Committee had examined t h i s p r o p o s a l b u t from a t e c h n i c a l p o i n t of view had found i t t o be n o t a s t r a i g h t f o r w a r d o p t i o n .
14. The D e l e g a t e of Madagascar wished t o know whether A r t i c l e 14 of t h e Montreal Convention, d e a l i n g w i t h d i s p u t e s concerning t h e i n t e r p r e t a t i o n of t h e Convention, were a p p l i c a b l e t o t h e P r o t o c o l s i n c e A r t i c l e I V of t h e P r o t o c o l , which had seemed t o answer t h i s q u e s t i o n , had been merged w i t h A r t i c l e I . The Executive S e c r e t a r y , D r . M. Milde, r e p l i e d t h a t t h e new A r t i c l e I , when r e c e i v e d , would c l a r i f y t h e i s s u e as i t would s t a t e t h a t t h e Convention and t h e P r o t o c o l were t o b e r e a d and i n t e r p r e t e d t o g e t h e r a s one s i n g l e i n s t r u m e n t , consequently A r t i c l e 14 would apply t o t h o s e adhering t o t h e Montreal Convention o n l y through t h e supplementary P r o t o c o l . 15. The D e l e g a t e of Japan r a i s e d an e d i t o r i a l p o i n t w i t h r e f e r e n c e t o paragraph 1 of A r t i c l e I X , s u g g e s t i n g t h a t t h e word "party" b e r e p l a c e d by "Contracting S t a t e " s o as t o b e c o n s i s t e n t w i t h t h e corresponding a r t i c l e of t h e Montreal Convention. The Chairman of t h e D r a f t i n g Committee i n d i c a t e d t h a t w h i l e i n t h e Montreal Convention r e f e r e n c e was made t o a "Contracting S t a t e " , h e b e l i e v e d t h a t t h e p r o p e r p r a c t i c e as regarded t h e P r o t o c o l w a s t o u s e t h e term " P a r t y t o t h e Protocol".
16. The D e l e g a t e of A u s t r a l i a , i n r e f e r e n c e t o t h e f i n a l p r o v i s i o n s f o l l o w i n g A r t i c l e X i n V I A Doc No. 31, observed t h a t i t would be more c o n s i s t e n t w i t h t h e s t y l e of t h e Montreal Convention i f t h e paragraph beginning "In w i t n e s s whereof" were t o appear b e f o r e t h e paragraph beginning w i t h "Done a t Montreal". T h i s s u g g e s t i o n was supported by t h e D e l e g a t e - o f t h e Kingdom of t h e Netherlands. The Executive S e c r e t a r y , Dr. M. Milde a g r e e d , i n d i c a t i n g t h a t Copyright International Civil Aviation Organization Provided by IHSt h e p r e s e n t o r d e r was a c l e r i c a l e r r o r and should be r e v e r s e d as n o t e d . under license with ICAO
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DRAFT Tenth Meet i n . Commission of t h e Whole
17. The D e l e g a t e of Madagascar, r e f e r r i n g t o VIA Doc No. 28 d e a l i n g w i t h t h e t i t l e of t h e P r o t o c o l , noted t h a t t h e t i t l e spoke of "supplementing" t h e He t h e n p o i n t e d o u t t h a t s i n c e P r o t o c o l r a t h e r t h a n of "amending" i t . t h e d r a f t P r o t o c o l contained t h e i n s t r u c t i o n t o d e l e t e A r t i c l e II of paragraph 2 ( a ) of t h e Convention and r e p l a c e it by a new paragraph 2 ( a ) , t h e P r o t o c o l could n o t b e seen a s something t h a t merely supplemented t h e Montreal Convention, s i n c e it w a s , i n f a c t , amending i t . The Chairman of t h e D r a f t i n g Committee noted t h i s , and, e x p l a i n i n g t h a t A r t i c l e II had n o t y e t been d e a l t w i t h by t h e D r a f t i n g Committee, assured t h e Conference t h a t t h e r e could c e r t a i n l y be found a n o t h e r way t o i n t r o d u c e t h e s u b s t a n c e of t h e new paragraph 2 ( a ) t h a t would r e s u l t i n i t s supplementing r a t h e r than amending t h e Convent ion.
18. The D e l e g a t e of Columbia queried t h e u s e of t h e p h r a s e "done a t Montreal" i n t h e t i t l e of t h e P r o t o c o l a s p r e s e n t e d i n V I A Doc No. 28, as t h i s seemed i n c o n s i s t e n t w i t h t h e t i t l e of t h e Convention which s t a t e d "signed a t Montreal". The Executive S e c r e t a r y , D r . M. Milde, explained t h a t " d m e a t Montreal" was t h e a u t h e n t i c t e x t even though t h e words "signed a t Montreal" The Chairman of t h e D r a f t i n g Committee appeared on t h e cover of Doc 8966. added t h a t a n o t h e r reason i n support of u s i n g t h e two terms was t o avoid any confusion t h a t might a r i s e by t h e r e p e t i t i o n of t h e same word s o soon a f t e r i t f i r s t appeared.
19. The D e l e g a t e of t h e Union of S o v i e t S o c i a l i s t Republics r a i s e d t h e i s s u e t h a t a t t h e beginning of t h e p r e s e n t work t h e r e had been t h e q u e s t i o n of whether t o make t h e new instrument an independent document o r a supplement t o t h e Montreal Convention and he noted t h a t t h i s q u e s t i o n had influenced t h e work H e expressed doubt i n t h e d e c i s i o n t h a t S t a t e s wishing t o t h a t had followed. become p a r t i e s t o t h e P r o t o c o l must a l s o adhere t o t h e Convention, s t a t i n g t h a t while t h e P r o t o c o l would supplement t h e Montreal Convention, t h i s d i d n o t make it l e s s independent l e g a l l y . H e b e l i e v e d t h a t i f it were p o s s i b l e t o p a r t i c i p a t e i n t h e Convention and n o t i n t h e P r o t o c o l , then t h e o p p o s i t e s i t u a t i o n should a l s o be a c c e p t a b l e . The Chairman r e p l i e d t h a t although t h e Commission of t h e Whole was f r e e t o reopen any i s s u e , it had been understood a t t h e end of t h e f i r s t meeting t o be t h e c l e a r d e c i s i o n of t h e Commission of t h e Whole n o t t o c o n s t r u c t p r o v i s i o n s t h a t would e n a b l e a p a r t y t o s u b s c r i b e t o t h e P r o t o c o l a l o n e and, on t h a t b a s i s t h e D r a f t i n g Committee had proceeded. The Chairman of t h e D r a f t i n g Committee reminded Delegates t h a t t h e Conference was c o n s t r u c t i n g a supplementary document and t h a t it was n o t n e c e s s a r y f o r any p a r t y t o t h e Montreal Convention t o s u b s c r i b e t o t h i s supplementary document. (The meeting adjourned a t 1230 h o u r s )
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DRAFT Eleventh Meeting Commission of t h e Whole
ELEVENTH MEETING O THE COMMISSION OF THE WHOLE F (Thursday, 18 February 1988, a t 1000 h o u r s )
AGENDA ITEM 9:
1. I n opening t h e 1 1 t h meeting of t h e Commission of t h e Whole t h e Chairman noted t h a t t h e r e seemed t o b e g e n e r a l agreement, a t l e a s t on a p r o v i s i o n a l b a s i s , on t h e t i t l e and t h e f i n a l p r o v i s i o n s , s u b j e c t t o t h e p a r t i n b r a c k e t s which i n t u r n depended on what was done u l t i m a t e l y w i t h bis. The d i s c u s s i o n a t t h e meeting would s t a r t w i t h a R e s o l u t i o n paragraph 1 on p r e v e n t i v e measures proposed by t h e Union of S o v i e t S o c i a l i s t Republics and contained i n V I A Doc No. 32.
2. I n p r e s e n t i n g t h e r e s o l u t i o n t h e D e l e g a t e of t h e Union of S o v i e t S o c i a l i s t Republics explained t h a t on t h e b a s i s of t h e i r p r o p o s a l an u n o f f i c i a l group r e p r e s e n t i n g a broad range of d e l e g a t i o n s had worked o u t a compromise and had prepared t h e d r a f t r e s o l u t i o n on p r e v e n t i v e measures a g a i n s t unlawful a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n . T h i s r e s o l u t i o n w a s contained i n VIA Doc No. 3 2 . There was j u s t one a r e a where i t had been d i f f i c u l t t o o b t a i n a consensus of opinion and t h a t w a s w i t h regard t o t h e opening p h r a s e of o p e r a t i v e paragraph 3 which r e a d "Urges t h e i n t e r n a t i o n a l .I1. Some community t o "extend" t e c h n i c a l , f i n a n c i a l and m a t e r i a l a s s i s t a n c e Delegat ions p r e f e r r e d t o u s e "cont inue t o extend" w h i l e o t h e r Delegat ions wished t o a l t e r t h e word "extend" t o "increase".
I n t a k i n g t h e f l o o r , t h e Delegate of Kenya addressed himself s p e c i f i c a l l y t o o p e r a t i v e paragraph 3 of t h e r e s o l u t i o n , s t a t i n g t h a t t h i s paragraph should be read i n c o n j u n c t i o n w i t h t h e f o u r t h preambular paragraph. I n d r a f t i n g t h e f o u r t h preambular paragraph h i s D e l e g a t i o n had wished t o l i n k t h e f a c t t h a t t h e r e was a l r e a d y a s s i s t a n c e being provided t o S t a t e s i n need t o a n acknowledgement f r o m t h e i n t e r n a t i o n a l community t h a t some S t a t e s n e v e r t h e l e s s faced d i f f i c u l t y i n implementing s e c u r i t y measures a t a i r p o r t s . I n h i s D e l e g a t i o n ' s view i f t h e wording i n paragraph 3 urged t h e i n t e r n a t i o n a l community t o "continue t o extend" t e c h n i c a l a s s i s t a n c e t h e f o r c e of t h e preambular c l a u s e would b e reduced t o t h e l e v e l of m a i n t a i n i n g a s t a t u s quo i n r e s p e c t of a s s i s t a n c e . He urged t h e Conference t o support i n c l u s i o n of t h e word " i n c r e a s e " i n t h e f i r s t i i n e of paragraph 3 . The Delegates of Ghana, N i" e r i a . E t h i o p i a and Malavsia eave t h e i r s u m o r t t o t h e s t a t e m e n t of t h e g D e l e g a t e of Kenya. The D e l e g a t e of Colombia a l s o supported t h e D e l e g a t e of Kenya w i t h r e g a r d t o t h e u s e of t h e word " i n c r e a s e " i n o p e r a t i v e paragraph 3 , b u t s u g g e s t e d , a s an a l t e r n a t i v e , t h e term " s t e p up" i n t h e opening s e n t e n c e .
3.
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4. The D e l e g a t e of t h e F e d e r a l Republic of Germany s t a t e d t h a t w i t h r e g a r d t o paragraph 3 of t h e r e s o l u t i o n , h i s D e l e g a t i o n was n o t empowered t o make any f i n a n c i a l commitments regarding p r e v e n t i v e measures and would p r e f e r t o s t a y w i t h t h e o r i g i n a l t e x t which r e a d "Urges t h e i n t e r n a t i o n a l community t o "extend" t e c h n i c a l , f i n a n c i a l and m a t e r i a l a s s i s t a n c e . . . I t . Copyright International Civil Aviation Organization
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The D e l e g a t e of t h e United Kingdom expressed a d e f i n i t e p r e f e r e n c e f o r t h e word "continue" b u t as it was h i g h l y d e s i r a b l e f o r t h i s r e s o l u t i o n t o o b t a i n t h e w i d e s t p o s s i b l e s u p p o r t , h i s D e l e g a t i o n would be w i l l i n g t o a g r e e w i t h t h e u s e of t h e word "extend". The D e l e g a t e of I t a l y a l s o supported t h e word "extend".
5.
6. The D e l e g a t e of Sweden suggested t h a t , i n o r d e r t o b r i d g e t h e d i f f i c u l t i e s w i t h regard t o t h e wording of paragraph 3 , t h e t e x t should read .'l. T h i s would encompass i n i t s meaning ""consider i n c r e a s i n g " t e c h n i c a l "continue t o extend" without making any commitment on t h e p a r t of d e l e g a t i o n s present. The views of t h e D e l e g a t e of Sweden were shared by t h e D e l e g a t e s of A r g e n t i n a , Czechoslovakia, Ecuador, C h i l e , I c e l a n d , S w i t z e r l a n d , Venezuela, t h e I s l a m i c Republic of I r a n and Japan. The D e l e g a t e s of Poland and Norway p r e f e r r e d t h e p h r a s e " t o extend" but were prepared t o a c c e p t "consider i n c r e a s i n g " as a compromise.
..
The D e l e g a t e of Niger p r e f e r r e d t h e p r o p o s a l p u t forward by t h e D e l e g a t e of Kenya, b u t , r e c o g n i z i n g t h a t t h e d e l e g a t e s p r e s e n t were n o t a u t h o r i z e d t o make f i n a n c i a l commitments, and i n a s p i r i t of compromise, would b e w i l l i n g t o a c c e p t t h e wording proposed by t h e D e l e g a t e of Sweden. Similar views were expressed by t h e D e l e g a t e s of Malawi, P a k i s t a n and Cuba.
7.
..
9. The D e l e g a t e of Costa Rica proposed combining a l l t h r e e c o n c e p t s t h a t were b e i n g debated and suggested t h a t t h e p h r a s e r e a d "Urges t h e i n t e r n a t i o n a l The D e l e g a t e of t h e community t o c o n t i n u e t o extend and t o i n c r e a s e . . . I 1 . United Republic of Tanzania suggested "continue and i n c r e a s e " as t h e s e words took i n t o account t h a t c e r t a i n S t a t e s a r e a l r e a d y p r o v i d i n g a s s i s t a n c e a s w e l l as suggesting t h a t t h i s a s s i s t a n c e be increased. 10. The D e l e g a t e of t h e F e d e r a l Republic of Germany s t a t e d t h a t f u r t h e r t o h i s e a r l i e r comments, he had had d i s c u s s i o n s w i t h o t h e r D e l e g a t i o n s on t h i s s u b j e c t . They had agreed as a compromise t o withdraw t h e i r p r e v i o u s p r o p o s a l s and w i t h r e g a r d t o t h e opening p h r a s e of paragraph 3 , t o have b o t h s q u a r e b r a c k e t s removed and t o come back t o t h e o r i g i n a l wording "Urges t h e i n t e r n a t i o n a l community t o extend
...".
11. Summing up t h e Chairman noted t h a t , i n t h e c o u r s e of t h e morning's d i s c u s s i o n s , s e v e r a l D e l e g a t i o n s had suggested amendments of a t e c h n i c a l n a t u r e t o o p e r a t i v e paragraph 1 and preambular paragraph 2 and he suggested t h a t t h o s e D e l e g a t i o n s should l a t e r c o n s u l t w i t h t h e Executive S e c r e t a r y concerning t h e s e
matters.
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8. R e f e r r i n g t o paragraph 3 of t h e r e s o l u t i o n , t h e D e l e g a t e of I n d i a noted t h a t s e c u r i t y i n c i v i l a v i a t i o n a f f e c t e d a l l c o u n t r i e s and t h a t nobody was s a f e u n l e s s everybody was s a f e . What was important was t h e e x p r e s s i o n by . t h e i n t e r n a t i o n a l community of t h e d e s i r e t o Co-operate i n a s s i s t i n g t h o s e S t a t e s whose r e s o u r c e s were inadequate and h i s D e l e g a t i o n thought t h i s could b e s t b e achieved by d e l e t i o n of b o t h words i n s q u a r e b r a c k e t s i n VIA Doc No. 32 and r e t a i n i n g t h e o r i g i n a l t e x t t o read "Urges t h e i n t e r n a t i o n a l community t o extend .ll.The D e l e g a t e s of Senegal and i china expressed t h e i r s u p p o r t f o r t h e views of t h e D e l e g a t e of I n d i a b u t w i t h t h e a d d i t i o n of t h e word " f u r t h e r " s o t h e p h r a s e would read " f u r t h e r extend"
- 101 -
12. R e f e r r i n g t o a p r o p o s a l made by t h e D e l e g a t e of Senegal t o amend t h e f o u r t h preambular paragraph i n o r d e r t o r e f l e c t t h e concerns of t h e D e l e g a t e of Kenya t h a t c e r t a i n S t a t e s s t i l l faced problems i n implementing p r e v e n t i v e measures d e s p i t e t h e a s s i s t a n c e t h e y were a l r e a d y r e c e i v i n g , t h e Chairman suggested t h e following rewording of t h a t paragraph:
"Aware t h a t n o t w i t h s t a n d i n g a s s i s t a n c e g i v e n t o S t a t e s i n need, some S t a t e s , e s p e c i a l l y developing S t a t e s , s t i l l f a c e d i f f i c u l t i e s i n implementing p r e v e n t i v e measures because of i n s u f f i c i e n t f i n a n c i a l and t e c h n i c a l resources".
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13. Regarding o p e r a t i v e paragraph 3 , t h e Chairman proposed t h a t t h e Commission accept p r o v i s i o n a l l y t h e s u g g e s t i o n made by t h e D e l e g a t e of Sweden t h a t i t s opening p h r a s e should read "Urges t h e i n t e r n a t i o n a l community t o He was aware t h a t some D e l e g a t i o n s were s t i l l c o n s i d e r i n c r e a s i n g ...I1. concerned t h a t t h i s f o r m u l a t i o n might commit them t o something t h e y had no a u t h o r i t y t o do. Such D e l e g a t i o n s c o u l d , i n t h e mean t i m e , check w i t h t h e i r c a p i t a l s and t h e Commission could go back t o t h a t i s s u e a t a l a t e r s t a g e i f n e c e s s a r y . But, based on p a s t experience and on many p r e c e d e n t s t h a t have been a p p l i e d t o comparable c i r c u m s t a n c e s , he b e l i e v e d t h e r e would be no problem i n proceeding f o r t h e t i m e being on t h a t b a s i s .
14. The D e l e g a t e of Senegal requested a c l a r i f i c a t i o n from t h e S e c r e t a r y General concerning t h e p r a c t i c a l a p p l i c a t i o n of r e s o l v i n g c l a u s e 3 . H e wished t o know, whatever t h e f i n a l f o r m u l a t i o n of t h i s paragraph, whether t h e p r o v i s i o n s of t h i s c l a u s e were enough f o r t h e Council t o monitor o r ensure t h e a p p l i c a t i o n of t h i s p r o v i s i o n . He noted t h a t i n t h i s Clause t h e I C A 0 Council had n o t been e x p r e s s l y addressed and t h e r e f o r e he wondered i f , as i t s t o o d , t h e Council could t a k e a c t i o n through t h e S e c r e t a r y General, t o implement t h i s p r o v i s i o n o r would i t b e u s e f u l t o e i t h e r add a n o t h e r c l a u s e o r expand t h i s one w i t h a p h r a s e r e q u e s t i n g t h e Council t o monitor i t s implementation.
15. The S e c r e t a r y General assured t h e Conference t h a t t h i s r e s o l u t i o n , i f adopted, would be p r e s e n t e d t o Council, w i t h h i s recommendation t h a t Council t a k e p r a c t i c a l measures t o communicate t o t h e i n t e r n a t i o n a l community t h e wishes contained i n o p e r a t i v e paragraph 3 . (The meeting adjourned a t 1230 h o u r s )
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DRAFT Twelfth Meeting Commission of t h e Whole
TWELFTH MEETING O THE COMMISSION O THE WHOLE F F
(Thursday, 18 February 1988, a t 1400 h o u r s )
Chairman:
AGENDA ITEM 9:
1. I n t r o d u c i n g t h e D r a f t F i n a l Act c o n t a i n e d i n V I A Doc No. 35, t h e Executive S e c r e t a r y explained t h a t it comprised a r e p o r t . on t h e sequence of e v e n t s and on t h e d e c i s i o n s taken. Any. R e s o l u t i o n s t h a t were adopted by t h e Conference would b e included as an i n t e g r a l p a r t of t h e F i n a l Act and a f t e r i t w a s f i n a l i z e d , it would b e signed by t h e a c c r e d i t e d r e p r e s e n t a t i v e s of S t a t e s who had t a k e n p a r t i n t h e Conference.
2. There considered, t h e i n t h e standard t h e a u s p i c e s of
followed a b r i e f d i s c u s s i o n on t h e form of t h e document being Executive S e c r e t a r y e x p l a i n i n g t h a t t h e D r a f t had been prepared format of F i n a l Acts of Diplomatic Conferences convened under ICAO.
The Chairman t h e n r e p o r t e d t h a t t h e D r a f t i n g Committee had concluded i t s c o n s i d e r a t i o n of paragraph 1 b i s and t h a t i t s work on t h e Preamble t o t h e That l e f t A r t i c l e 2 - on i s s u e s r e l a t i n g t o bis P r o t o c o l was almost complete. j u r i s d i c t i o n and e x t r a d i t i o n t o b e r e s o l v e d and he opened t h e d i s c u s s i o n t o any d e l e g a t ion t h a t wished t o comment.
3.
4. The D e l e g a t e of Colombia pointed o u t t h a t paragraph 4 of A r t i c l e 8 of t h e Montreal Convention e s t a b l i s h e d t h a t , f o r t h e purpose of e x t r a d i t i o n , it would b e deemed t h a t t h e o f f e n c e s took p l a c e n o t o n l y where t h e y occurred but also in t h e States required t o establish t h e i r jurisdiction. For t h i s reason bis, s h e f e l t t h a t , a t t h e end of paragraph 2 - r e f e r e n c e should be made t o t h e S t a t e s mentioned i n paragraphs l ( a ) and ( b ) of A r t i c l e 5 of t h e Montreal Convention. She considered t h a t paragraphs ( c ) and ( d ) would n o t b e e a s i l y a p p l i c ab l e .
5.
A s t h e r e were no o t h e r comments, t h e meeting adjourned a t 1430 hours.
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AGENDA ITEM 9:
1. The Chairman o u t l i n e d t h e schedule of work f o r t h e Conferences morning and a f t e r n o o n m e e t i n g s , which would i n c l u d e c o n s i d e r a t i o n by t h e Commission of t h e r e p o r t of t h e D r a f t i n g Committee; d i s c u s s i o n of t h e q u e s t i o n of t h r e a t and of i s s u e s r e l a t i n g t o j u r i s d i c t i o n and e x t r a d i t i o n ; review of a D r a f t Resolution p r e s e n t e d by t h e Delegation of Argentina and, i f n e c e s s a r y , of t h e D r a f t R e s o l u t i o n on p r e v e n t i v e measures and t e c h n i c a l a s s i s t a n c e ; and c o n s i d e r a t i o n by t h e P l e n a r y of t h e r e p o r t of t h e C r e d e n t i a l s Committee.
2. The Chairman of t h e D r a f t i n g Committee, M r . L. Oates (United Kingdom), i n i n t r o d u c i n g h i s Committees r e p o r t ( V I A Doc No. 4 0 ) , expressed h i s thanks t o i t s members f o r t h e s p i r i t of co-operation w i t h which t h e y had c a r r i e d o u t t h e i r work, and informed t h e Commission t h a t o n l y one i t e m remained on which t h e D r a f t i n g Committee had not been a b l e t o r e a c h a consensus. He t h e n d i r e c t e d t h e Commissions a t t e n t i o n t o t h o s e p o i n t s which had been d i s c u s s e d by t h e D r a f t i n g Committee, commencing w i t h t h e t i t l e of t h e d r a f t P r o t o c o l , which t h e Committee had decided t o confirm a s p r e v i o u s l y produced and without any s q u a r e b r a c k e t s a t any p o i n t .
3. R e f e r r i n g n e x t t o A r t i c l e I , which e s t a b l i s h e d t h e b a s i c r e l a t i o n s h i p between t h e Convention and t h e P r o t o c o l , t h e Chairman of t h e D r a f t i n g Committee explained t h a t f o r t h o s e S t a t e s which would s u b s c r i b e t o t h e P r o t o c o l , t h e Convention would be read w i t h t h e a d d i t i o n of t h e words added i n t h e t e x t of t h e Protocol. For t h o s e S t a t e s which would accede o n l y t o t h e o r i g i n a l Montreal Convention, t h e Convention would apply without t h e a d d i t i o n of t h e words contained i n t h e P r o t o c o l .
4. Turning t o t h e t e x t of A r t i c l e I I , t h e main s u b s t a n t i v e a r t i c l e bis, c o n t a i n i n g t h e proposed paragraph 1 - t h e Chairman of t h e D r a f t i n g Committee informed t h e Commission t h a t although a l a r g e number of s u g g e s t i o n s had been considered by t h e D r a f t i n g Committee i n t h e c o u r s e of i t s d e b a t e on t h i s a r t i c l e , no consensus had been reached on any of t h e s u b s t a n t i v e changes proposed. R e f e r r i n g i n p a r t i c u l a r t o proposals f o r changing t h e r e f e r e n c e t o means u s e d , he i n d i c a t e d t h a t t h e D r a f t i n g Committee had n o t wished t o d i s t u r b t h e fundamental compromise reached i n t h e Legal Committee on t h i s p o i n t . The same concern had a p p l i e d t o o t h e r p r o p o s a l s f o r s u b s t a n t i v e changes, i n c l u d i n g t h o s e r e l a t e d t o t h e i n c l u s i o n of e x t e r n a l f a c i l i t i e s , as w e l l as a number of e d i t o r i a l s u g g e s t i o n s which, i n t h e c o u r s e of d i s c u s s i o n , had been found t o r a i s e p o i n t s of s u b s t a n c e on which a consensus could n o t b e reached. The D r a f t i n g Committee was t h e r e f o r e recommending adoption of t h e E n g l i s h t e x t of A r t i c l e II as d r a f t e d by t h e Legal Committee. The French, Russian and Spanish
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DRAFT T h i r t e e n t h Meeting Commission of t h e Whole
THIRTEENTH MEETING O THE COMMISSION O THE WHOLE F F
Chairman:
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- 106-
v e r s i o n s had a l s o been c o n s i d e r e d , and w h i l e no problems had been encountered w i t h t h e wording of t h e Russian t e x t , t h e second paragraph of A r t i c l e II had been r e d r a f t e d i n t h e French and Spanish v e r s i o n s t o make it c o n s i s t e n t w i t h t h e concept of t h e P r o t o c o l a s supplementary, and n o t d e l e t i n g o r r e p l a c i n g any m a t e r i a l i n t h e Montreal Convention.
5. The t e x t of A r t i c l e III, d e a l i n g w i t h t h e i s s u e of j u r i s d i c t i o n and e x t r a d i t i o n , would r e q u i r e f u r t h e r c o n s i d e r a t i o n by t h e Commission of t h e Whole. The f i n a l p r o v i s i o n s of t h e P r o t o c o l would b e one c l a u s e s h o r t e r t h a n i n t h e d r a f t c o n t a i n e d i n V I A Doc No. 3 .
6. The Commission's a t t e n t i o n was t h e n d i r e c t e d back t o t h e t e x t of t h e preamble. The Chairman of t h e D r a f t i n g Committee explained t h a t s i n c e no consensus on changing t h e q u a l i f i e r i n paragraph 1 - had seemed p o s s i b l e bis f o l l o w i n g t h e d e b a t e i n t h e Commission of t h e Whole, t h e Committee had c o n s i d e r e d amending t h e t e x t of t h e preamble t o r e f l e c t t h e concerns expressed by a number of d e l e g a t i o n s t h a t t h e scope of t h e i n t e r n a t i o n a l o f f e n c e could b e more p r e c i s e l y i d e n t i f i e d . The outcome of t h e Committee's d e b a t e on t h i s s u b j e c t was a proposed change t o t h e f i r s t preambular c l a u s e which would i n d i c a t e more c l e a r l y t h a t t h e P r o t o c o l was c o n s i d e r i n g unlawful a c t s of v i o l e n c e which endangered s a f e t y of persons o r which j e o p a r d i z e d t h e s a f e When v o t i n g on t h i s amendment, o n l y one member of t h e o p e r a t i o n of a i r p o r t s . D r a f t i n g Committee had i n d i c a t e d h e could n o t a c c e p t i t and one o t h e r member had a b s t a i n e d .
7. The Chairman of t h e D r a f t i n g Committee n e x t r e f e r r e d t o t h e matter upon which no consensus had been reached: a p r o p o s a l t o i n c l u d e a n o t e , shown i n s q u a r e b r a c k e t s i n t h e t e x t prepared by t h e Committee, e x p r e s s i n g concern over t h e e s c a l a t i o n of t e r r o r i s t a c t i v i t i e s i n t h e world. H e reminded t h e Commission t h a t when t h i s i s s u e w a s considered a t t h e 26th S e s s i o n of t h e Legal Committee, it had been r e s o l v e d on an i n d i c a t i v e v o t e i n t h e working group t o Out of t h e 24 d e l e g a t i o n s e n t i t l e d t o v o t e n o t i n c o r p o r a t e such a r e f e r e n c e . i n t h e D r a f t i n g Committee, 11 had voted i n f a v o u r of t h i s r e f e r e n c e and 9 had A number of d e l e g a t i o n s had moreover i n d i c a t e d voted a g a i n s t i t s i n c l u s i o n . t h a t t h e y would have g r e a t d i f f i c u l t y i n a c c e p t i n g t h e i n c l u s i o n of such a r e f e r e n c e , which t h e y argued was n o t a p p r o p r i a t e f o r t h e P r o t o c o l . The matter was t h e r e f o r e being r e f e r r e d t o t h e Commission of t h e Whole f o r i t s d e c i s i o n .
8. The Chairman expressed h i s thanks t o t h e Chairman of t h e D r a f t i n g Committee f o r h i s i n t r o d u c t i o n of t h e r e p o r t c o n t a i n e d i n V I A Doc No. 40, and observed t h a t s i n c e t h e matter being r e f e r r e d t o t h e Commission of t h e Whole had a l r e a d y been d i s c u s s e d a t some l e n g t h by t h a t body a s w e l l as by t h e Legal Committee a t i t s 26th S e s s i o n , a d e c i s i o n could b e t a k e n without much f u r t h e r d e b a t e . A f t e r i n v i t i n g comments from D e l e g a t i o n s on t h e r e p o r t of t h e D r a f t i n g Committee, and r e c e i v i n g none, he r e q u e s t e d t h a t D e l e g a t e s e x p r e s s t h e i r views through an i n d i c a t i v e v o t e as t o whether o r n o t t h e f i r s t paragraph of t h e preamble, appearing i n s q u a r e b r a c k e t s i n t h e r e p o r t of t h e D r a f t i n g Committee and reading "concerned about t h e e s c a l a t i o n of t e r r o r i s t a c t i v i t i e s i n t h e world," should b e included i n t h e preamble of t h e P r o t o c o l .
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9. On a p o i n t of o r d e r , t h e D e l e g a t e of T u n i s i a r e q u e s t e d c l a r i f i c a t i o n H e t h e n suggested t h a t two s e p a r a t e on t h e v o t i n g procedure being adopted. v o t e s b e t a k e n ; - t h e f i r s t t o measure t h e d e g r e e of support f o r t h e t e x t of t h e preamble i n c l u d i n g t h e s e n t e n c e i n square b r a c k e t s , and t h e second on t h e same preamble without t h i s r e f e r e n c e .
10. The Observer from t h e PLO, commenting on t h e t e x t under q u e s t i o n , expressed t h e view t h a t i t s wording should n o t i n c l u d e any terms f o r which a c l e a r d e f i n i t i o n had as y e t n o t been developed.
11. F u r t h e r t o t h e s u g g e s t i o n made by t h e D e l e g a t e of T u n i s i a , The Chairman informed t h e Commission t h a t i n a d d i t i o n t o t h e two i n d i c a t i v e v o t e s which would b e t a k e n , a t h i r d would f o l l o w t o determine how many d e l e g a t i o n s could support t h e formula which had received. t h e h i g h e s t number o f v o t e s .
12. I n d i c a t i v e v o t e s on p r e f e r e n c e s f o r t h e t e x t of t h e preamble were t h e n t a k e n . The r e s u l t showed 38 Delegations i n favour of i n c l u d i n g t h e c l a u s e i n s q u a r e b r a c k e t s , and 3 1 i n f a v o u r of t h e preamble without t h i s c l a u s e . 13. The Delegate of Sweden, on a p o i n t of o r d e r , asked f o r c l a r i f i c a t i o n of a comment made by t h e Chairman during t h e v o t i n g procedure t o t h e e f f e c t t h a t Delegations could v o t e i n f a v o u r of b o t h v e r s i o n s of t h e preamble. The Chairman explained t h a t t h e o b j e c t i v e of an i n d i c a t i v e v o t e w a s s i m p l y t o determine D e l e g a t i o n s ' p r e f e r e n c e s ; h e then c a l l e d a t h i r d i n d i c a t i v e v o t e t o determine t h e number of D e l e g a t i o n s which, i n view of t h e outcome of t h e f i r s t two v o t e s , could now a c c e p t t h e i n c l u s i o n of t h e c l a u s e i n b r a c k e t s . 14. The r e s u l t of t h e t h i r d i n d i c a t i v e v o t e showed t h a t 49 Delegations were w i l l i n g t o a c c e p t t h e P r o t o c o l w i t h t h e a d d i t i o n a l preambular c l a u s e . 15. The Chairman i n d i c a t e d t h a t t h e r e was no need t o t a k e a formal d e c i s i o n on t h e i s s u e a t t h i s s t a g e , g i v e n t h e r e l a t i v e e q u i l i b r i u m between t h e preferences manifested. A f t e r i n v i t i n g f u r t h e r comments from d e l e g a t i o n s on t h e r e p o r t of t h e D r a f t i n g Committee, and r e c e i v i n g none, he turned t h e Commission's a t t e n t i o n t o t h e q u e s t i o n of whether o r n o t t h e concept of t h r e a t bis. should b e included i n paragraph 1 - H e reminded t h e Commission of a r e q u e s t p u t forward e a r l i e r t h a t t h i s i s s u e b e t h e o b j e c t of a d e c i s i o n n o t by t h e D r a f t i n g Committee, b u t by t h e Commission of t h e Whole. 16. The D e l e g a t e of Colombia considered t h e i n c l u s i o n of t h r e a t i n t h e P r o t o c o l t o b e of a b s o l u t e importance i n enabling S t a t e s t o c l a s s i f y and p e n a l i z e i n c i d e n t s of t h r e a t which endangered t h e s a f e t y of an a i r p o r t . With a view t o developing as complete a t e x t as p o s s i b l e , h e r d e l e g a t i o n was sub-paragraph a ) be modified t o proposing t h a t t h e t e x t of paragraph 1 read "performs o r t h r e a t e n s t o perform an a c t of v i o l e n c e a g a i n s t a person a t an a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n .'l.
e,
..
17. The p r o p o s a l made by t h e Delegation of Colombia was supported by a m a j o r i t y of D e l e g a t i o n s commenting on t h i s i s s u e . The D e l e g a t e of A r g e n t i n a , r e f e r r i n g t o h i s d e l e g a t i o n ' s p r o p o s a l i n V I A Doc No. 6 , suggested t h e bis. He i n c l u s i o n of t h r e a t as a s e p a r a t e sub-paragraph under paragraph 1 Copyright International Civil Aviation Organization Provided by IHS under license with ICAO No reproduction or networking permitted without license from IHS
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e l a b o r a t e d on t h e r e a s o n s h i s d e l e g a t i o n wished t o see t h i s amendment i n c l u d e d , i n d i c a t i n g t h a t h e d i d n o t c o n s i d e r t h e concept of t h r e a t t o b e a l r e a d y covered by t h e t e r m "perform," a s had been suggested by a number of d e l e g a t e s a t t h e 26th S e s s i o n of t h e Legal Committee. R e f e r r i n g t o The Hague Convention which, under A r t i c l e 1, sub-paragraph a ) , r e f e r r e d t o t h e u s e of " f o r c e o r t h r e a t t h e r e o f , I 1 t h e D e l e g a t e of Argentina considered t h e absence of t h i s concept i n t h e Montreal Convention t o b e a dangerous omission. S i n c e t h r e a t was, i n h i s o p i n i o n , a s p e c i f i c a c t c a p a b l e of c r e a t i n g chaos a t an a i r p o r t , t h e r e b y i n t e r f e r i n g w i t h i t s s a f e o p e r a t i o n , i t should b e included i n t h e P r o t o c o l .
18. The i n c l u s i o n of t h e concept of t h r e a t w a s f u r t h e r supported by t h e D e l e g a t e of I n d i a , who expressed t h e view t h a t t h r e a t should b e c o n s i d e r e d as a s e p a r a t e concept whose r e p e r c u s s i o n s included s e r i o u s damage t o t h e t o u r i s m i n d u s t r y of S t a t e s as w e l l as t h e undermining of t h e t r a v e l l i n g p u b l i c ' s c o n f i d e n c e i n t h e s a f e o p e r a t i o n s of an a i r p o r t . The D e l e g a t e of E t h i o p i a considered t h a t s i n c e t h e r o l e of t h e P r o t o c o l was t o supplement t h e Montreal Convention w i t h o f f e n c e s f o r which it d i d n o t p r o v i d e , t h e i n c l u s i o n of t h r e a t as an o f f e n c e through t h e P r o t o c o l would n o t b e an i n c o n s i s t e n c y w i t h t h e Convention i t s e l f . The D e l e g a t e of Kenya, i n t e r p r e t i n g t h e o b j e c t i v e of t h e P r o t o c o l t o b e t h e p r o t e c t i o n of p r o p e r t y and f a c i l i t i e s n e c e s s a r y f o r t h e s a f e o p e r a t i o n of an a i r p o r t , c o n s i d e r e d t h a t t h r e a t was an o f f e n c e s e r i o u s enough The D e l e g a t e of C h i l e r e c a l l e d a p r o p o s a l t o b e included i n i t s p r o v i s i o n s . made t o t h e S p e c i a l Sub-Committee a t t h e Legal Committee's 2 6 t h S e s s i o n t h a t t h r e a t b e regarded as a means of performance of t h e o f f e n c e , and c o n s i d e r e d t h a t i n t h i s c a p a c i t y t h r e a t could c o n s t i t u t e a danger t o c i v i l a v i a t i o n o r could i n t e r f e r e w i t h t h e s a f e o p e r a t i o n of a i r p o r t s . The D e l e g a t i o n s of t h e I s l a m i c Republic of I r a n , Ecuador, Costa Rica, Saudi A r a b i a , Egypt, Panama and I s r a e l a l s o expressed t h e i r s u p p o r t f o r t h e i n c l u s i o n of t h e concept of t h r e a t .
19. S e v e r a l D e l e g a t i o n s expressed d i f f i c u l t y w i t h t h e p r o p o s a l . The D e l e g a t e of Japan r e f e r r e d t o t h e r e p o r t of t h e 26th S e s s i o n of t h e Legal Committee, which had concluded t h a t t h e scope of paragraph 1 b i s should b e While r e s t r i c t e d t o an o f f e n c e which c o n s t i t u t e d an a c t u a l a c t of v i o l e n c e . t h r e a t s d i s r u p t i n g t h e s e r v i c e s o f a n a i r p o r t would b e c o v e r e d by bis, sub-paragraph b ) of paragraph 1 - t h e D e l e g a t i o n of Japan d i d n o t c o n s i d e r less s e r i o u s t h r e a t s t o b e a p p r o p r i a t e t o t h e P r o t o c o l . The D e l e g a t e of Greece i n d i c a t e d t h a t h e r d e l e g a t i o n could n o t a c c e p t t h e i n c l u s i o n of a concept which i t c o n s i d e r e d would -extend beyond r e a s o n t h e scope of a p p l i c a t i o n of bis. I t was t h e o p i n i o n of h e r d e l e g a t i o n t h a t t h r e a t , by i t s paragraph 1 n a t u r e , w a s n o t c a p a b l e of endangering o r being l i k e l y t o endanger s a f e t y a t an a i r p o r t ; n o r could t h e concept b e included i n t h e n o t i o n of a t t e m p t , s i n c e t h r e a t d i d n o t i n v o l v e commencement of e x e c u t i o n . For t h e s e r e a s o n s t h e D e l e g a t i o n of Greece c o n s i d e r e d t h a t t h e q u e s t i o n of t h r e a t should remain i n t h e ambit of domestic l e g i s l a t i o n . The D e l e g a t e of F r a n c e expressed s u p p o r t f o r t h e o p i n i o n s made by t h e D e l e g a t i o n s of Japan and Greece, and maintained t h a t t h e i n t r o d u c t i o n of t h i s concept would c r e a t e an i n c o n s i s t e n c y between t h e H e held P r o t o c o l and t h e Montreal Convention which d i d n o t d e a l w i t h t h r e a t . t h e view t h a t w h i l e t h r e a t c o u l d , under c e r t a i n c i r c u m s t a n c e s , c o n s t i t u t e an o f f e n c e , i t d i d n o t c o n s t i t u t e an i n t e r n a t i o n a l o f f e n c e t o b e provided f o r i n t h i s instrument. The D e l e g a t e s of t h e United Kingdom, t h e F e d e r a l Republic of Germany and t h e United S t a t e s a l s o o b j e c t e d t o t h e i n c l u s i o n of t h e concept of t h r e a t i n t h e Protocol.
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20. An i n d i c a t i v e v o t e w a s taken on whether t h e t e x t of t h e P r o t o c o l should r e f e r t o a t h r e a t t o perform t h e a c t of v i o l e n c e . The r e s u l t w a s 3 0 D e l e e a t i o n s i n favour and 35 a g a i n s t . w i t h 11 a b s t e n t i o n s .
21. Before t a k i n g up d i s c u s s i o n of t h e n e x t i t e m on t h e meetings o r d e r of b u s i n e s s , The Chairman expressed h i s concern w i t h t h e outcome of t h e two i n d i c a t i v e votes taken thus f a r . He observed t h a t a formal v o t e on e i t h e r of t h e s e i s s u e s would y i e l d i n c o n c l u s i v e r e s u l t s , and f o r t h i s reason considered it d e s i r a b l e f o r d e l e g a t i o n s t o e n t e r i n t o i n f o r m a l c o n s u l t a t i o n s w i t h a view t o a r r i v i n g a t a consensus, w i t h t h e F i r s t Vice-president of t h e Conference, t h e Delegate of Kenya, s e r v i n g as t h e c o n t a c t f o r t h e s e c o n s u l t a t i o n s .
22. The D e l e g a t e of Jamaica agreed w i t h t h e concerns expressed by t h e Chairman. He suggested t h a t d u r i n g t h e s e c o n s u l t a t i o n s , Delegates c o n s i d e r t h e p o s s i b i l i t y of excluding from t h e P r o t o c o l t h o s e p r o v i s i o n s on which agreement h a d . n o t been reached, i n t h e i n t e r e s t of o b t a i n i n g t h e n e c e s s a r y d e g r e e of consensus. The Delegates of T u n i s i a and Venezuela a l s o shared t h e concerns expressed by t h e Chairman and supported h i s p r o p o s a l . 23. Turning wished t o a d d r e s s should i n c l u d e a Convention, which
t o t h e s u b j e c t of j u r i s d i c t i o n and e x t r a d i t i o n , t h e Chairman t h e q u e s t i o n of whether o r n o t t h e t e x t of paragraph 2 bis r e f e r e n c e t o A r t i c l e 5 , sub-paragraph 1 b ) of t h e Montreal referred t o a i r c r a f t registered in t h e S t a t e i n question.
24. The r e s u l t of an i n d i c a t i v e v o t e taken t o e s t a b l i s h t h e Commissions p r e f e r e n c e showed 49 D e l e g a t i o n s i n favour of keeping t h e e x i s t i n g t e x t of paragraph 2 b i s , and 1 8 D e l e g a t i o n s i n favour of i n c l u d i n g i n it t h e r e f e r e n c e t o A r t i c l e 5 , sub-paragraph 1 b)
25. A t h i r d i n d i c a t i v e v o t e showed t h a t 7 9 D e l e g a t i o n s could a c c e p t t h e e x i s t i n g t e x t of sub-paragraph 2 b i s , a s p r e f e r r e d by t h e m a j o r i t y . 26. When commenting on t h e p r o v i s i o n s c o v e r i n g j u r i s d i c t i o n and e x t r a d i t i o n , The Delegation of Japan expressed t h e opinion t h a t t h e Conference should g i v e c o n s i d e r a t i o n t o t h e a p p r o p r i a t e amendment of paragraphs 2 , 3 and 4 of A r t i c l e 4 of t h e Convention s o a s t o cover t h e c a s e s contemplated i n sub-paragraph b ) o f paragraph 1 - of A r t i c l e 1 , as paragraph 6 of t h e bis A r t i c l e 4 now became a p p l i c a b l e t o t h e a t t e m p t s t o commit above c a s e s a s a bis r e s u l t of t h e a d d i t i o n of paragraph 1 - t o paragraph 2 a ) of A r t i c l e 1 of t h e Convent i o n .
27. The Chairman t h e n d i r e c t e d t h e Commissions a t t e n t i o n t o a D r a f t Resolution contained i n V I A Doc No. 3 6 , p r e s e n t e d by t h e D e l e g a t i o n of Argentina and Co-sponsored by B r a z i l , C h i l e , Colombia, Costa Rica, Ecuador, Panama, Peru and Spain. The D r a f t Resolution c o n s i s t e d of a recommendation t o C o n t r a c t i n g S t a t e s r e l a t i v e t o t h e adoption of domestic l e g i s l a t i o n aimed a t t h e c l a s s i f i c a t i o n of o f f e n c e s committed a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n and t h e e s t a b l i s h m e n t of s e v e r e p e n a l t i e s t h e r e f o r .
28. The D e l e g a t e of Japan pointed o u t an e d i t o r i a l amendment t o t h e second preambular c l a u s e which should be c o r r e c t e d t o r e f e r t o A r t i c l e 5 of t h e Montreal Convent i o n .
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29. The D e l e g a t e of A r g e n t i n a , i n i n t r o d u c i n g h i s d e l e g a t i o n ' s D r a f t R e s o l u t i o n , i n d i c a t e d t h a t t h e P r o t o c o l would be r a t i f i e d by a l a r g e number of S t a t e s w i t h l e g i s l a t i v e systems which d i f f e r e d g r e a t l y . I n order t o ensure a p p l i c a t i o n of t h e Montreal Convention and i t s P r o t o c o l , it w a s i m p e r a t i v e t h a t each S t a t e i n c o r p o r a t e i n t o i t s domestic l e g i s l a t i o n a c l a s s i f i c a t i o n of t h e o f f e n c e s covered i n t h e Montreal Convention, and t h e p e n a l t i e s t o b e imposed f o r t h e s e o f f ences.
30. The Chairman i n d i c a t e d t h a t d i s c u s s i o n of t h i s D r a f t R e s o l u t i o n would commence a t t h e a f t e r n o o n meeting, following t h e r e p o r t of t h e C r e d e n t i a l s Committee i n t h e s i x t h meeting of t h e P l e n a r y . Before a d j o u r n i n g t h e meeting, he r e q u e s t e d t h e D i r e c t o r of t h e Legal Bureau t o make a s t a t e m e n t , whereupon D r . M. Milde informed t h e Commission of a d i s c r e p a n c y appearing i n t h e t i t l e , f i r s t c o n s i d e r i n g c l a u s e and f i r s t r e s o l v i n g c l a u s e of t h e D r a f t R e s o l u t i o n : whereas t h e Spanish word "qualification" had been t r a n s l a t e d i n t o French by i t s e q u i v a l e n t , " q u a l i f i c a t i o n " , i t appeared i n t h e E n g l i s h and Russian v e r s i o n s as "classification". In o r d e r t o avoid any misunderstanding i n terminology, he suggested t h a t D e l e g a t e s c o n s i d e r r e f e r r i n g , i n a l l languages, t o t h e concept of " d e f i n i t i o n of o f f ences".
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DRAFT Seventh P l e n a r y Meeting
SEVENTH PLENARY MEETING

AGENDA ITEM 7 : REPORT OF THE CREDENTIALS COMMITTEE
1. The P r e s i d e n t i n v i t e d t h e Chairman of t h e C r e d e n t i a l s Committee t o p r e s e n t h e r r e p o r t , whereupon Mrs. L. Rodrguez Prez (Colombia) informed t h e P l e n a r y t h a t of t h e 81 S t a t e s r e p r e s e n t e d a t t h e Conference, c r e d e n t i a l s i n due and proper form had been p r e s e n t e d by 80 D e l e g a t i o n s . Only one Delegation had as y e t n o t submitted c r e d e n t i a l s . She expressed h e r a p p r e c i a t i o n t o M r . Kakkar and D r . F a l l e r of t h e Legal Bureau f o r t h e i r a s s i s t a n c e , as w e l l as t o t h e o t h e r members of t h e Committee.
2. The P r e s i d e n t expressed h i s thanks t o Mrs. Rodriguez P r e z f o r p r e s i d i n g over t h e C r e d e n t i a l s Committee, and a f t e r i n v i t i n g comments r e g a r d i n g t h e r e p o r t , and. r e c e i v i n g none, adjourned t h e S i x t h P l e n a r y Meeting t o resume t h e work of t h e Commission of t h e Whole.
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DRAFT F o u r t e e n t h Meeting Commission of t h e Whole
FOURTEENTH MEETING O THE COMMISSION O THE WHOLE F F
1. The Commission of t h e Whole began i t s c o n s i d e r a t i o n of t h e D r a f t Resolution p r e s e n t e d by t h e Delegation of Argentina ( V I A Doc No. 3 6 ) , c o n t a i n i n g a proposed recommendation t o C o n t r a c t i n g S t a t e s r e l a t i v e t o t h e adoption of domestic l e g i s l a t i o n aimed a t t h e c l a s s i f i c a t i o n of o f f e n c e s committed a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n and t h e e s t a b l i s h m e n t of s e v e r e p e n a l t i e s t h e r e f o r .
2. The D e l e g a t e of Norway expressed doubts as t o t h e a d v i s a b i l i t y of embarking upon c o n s i d e r a t i o n of t h i s i t e m a t such a l a t e s t a g e of t h e Conference, and f u r t h e r i n d i c a t e d t h a t h i s Delegation was n o t convinced of t h e need f o r a r e s o l u t i o n on t h i s s u b j e c t . Commenting on t h e t e x t , he questioned t h e meaning of t h e t e r m " c l a s s i f i c a t i o n , " . o r " d e f i n i t i o n of o f f e n c e s , " which would appear i n t h e f i r s t o p e r a t i v e c l a u s e ; h i s Delegation would be opposed t o any term i n s o f a r a s it implied d i r e c t i v e s f o r c a r r y i n g o u t t h e p r o v i s i o n s of It was h i s D e l e g a t i o n ' s view t h a t t h e P r o t o c o l by i n t e r n a l l e g i s l a t i v e powers. s u b s t a n t i v e recommendations going beyond t h e o b l i g a t i o n s l a i d down i n A r t i c l e 3 of t h e Montreal Convention should b e d e a l t w i t h i n t h e Convention i t s e l f o r i n i t s Protocol. The D e l e g a t e of t h e Union of S o v i e t S o c i a l i s t Republics, w h i l e expressing agreement w i t h t h e p r i n c i p l e t h a t o f f e n c e s d e f i n e d i n t h e P r o t o c o l should be a p p r o p r i a t e l y and s e v e r e l y punished, d i d have r e s e r v a t i o n s on a number of p o i n t s , i n c l u d i n g t h e a p p r o p r i a t e n e s s of t h e e x p r e s s i o n " P r o t o c o l t o amend t h e Convention" i n t h e Russian and English v e r s i o n s . With r e s p e c t t o t h e term " c l a s s i f i c a t i o n " o r " d e f i n i t i o n of o f f e n c e s , " he expressed t h e view t h a t t h e o b j e c t i v e of such a Resolution should n o t be t o c l a s s i f y o r d e f i n e o f f e n c e s b u t r a t h e r t o recommend t h e adoption of a p p r o p r i a t e measures f o r t h e punishment of t h o s e o f f e n c e s covered by t h e P r o t o c o l . To t h e e x t e n t t h a t t h e d r a f t could b e amended t o o f f e r guidance t o S t a t e s on such measures, i t would be a c c e p t a b l e t o t h e D e l e g a t i o n of t h e Union of S o v i e t S o c i a l i s t Republics. 4. The D e l e g a t e of Japan, commenting b r i e f l y on t h e d r a f t R e s o l u t i o n , h e l d t h e view t h a t a recommendation on t h e adoption of s p e c i a l measures t o f u l f i l t h e requirements of t h e P r o t o c o l would b e an impingement on t h e i n t e r n a l l e g i s l a t i v e systems of S t a t e s . For t h i s r e a s o n , t h e D e l e g a t i o n of Japan was n o t i n f a v o u r of adopting t h e R e s o l u t i o n .
3.
5. The D e l e g a t e of Denmark s t a t e d t h a t t h e o b l i g a t i o n f o r S t a t e s should b e confined t o t h e adoption of s e v e r e p e n a l t i e s f o r t h e punishment of o f f e n c e s c o n t a i n e d i n t h e P r o t o c o l , w i t h no a d d i t i o n a l requirements on implementation. S i n c e A r t i c l e 3 of t h e Montreal Convention would cover t h i s o b l i g a t i o n , he saw
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DRAFT Fourteen t h Meeting Commission of t h e Whole

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no need t o adopt a , r e s o l u t i o n on t h e s u b j e c t . H e further indicated t h a t t h e wording of a recommendation on p e n a l t i e s , i f d i f f e r e n t from t h e wording of A r t i c l e 3 , might o r i g i n a t e some confusion w i t h r e s p e c t t o e x i s t i n g o b l i g a t i o n s .
6. The D e l e g a t e of B u l g a r i a expressed support f o r t h e D r a f t R e s o l u t i o n , and o f f e r e d some s u g g e s t i o n s on wording which included modifying t h e f i r s t r e s o l v i n g c l a u s e t o read 'I.. .recommend t o C o n t r a c t i n g S t a t e s t h a t t h e y , when a p p r o p r i a t e , a d o p t ...I1; and r e p l a c i n g t h e word "amend" by t h e word "supplement" i n t h e f i r s t paragraph of t h e preamble and i n t h e f i r s t r e s o l v i n g clause. The D e l e g a t e of B u l g a r i a a l s o suggested t h e d e l e t i o n of t h e p h r a s e "and t o impose p e n a l t i e s p r o p o r t i o n a l t o t h e s e r i o u s n e s s of t h e s e o f f e n c e s , I 1 i n view of t h e f a c t t h a t t h i s recommendation would touch upon t h e i n t e r n a l l e g i s l a t i v e systems of S t a t e s , a number of which had a l r e a d y introduced such measures.
7. The D e l e g a t e of Mexico took t h e f l o o r t o e x p r e s s h i s complete support f o r t h e D r a f t R e s o l u t i o n , which he b e l i e v e d s t r e n g t h e n e d t h e c o n t e n t s of A r t i c l e 3 of t h e Montreal Convent i o n .
8. The D e l e g a t e o f P a k i s t a n e x p r e s s e d d i f f i c u l t y w i t h t h e t e r m " c l a s s i f i c a t i o n of o f f e n c e s " a s w e l l as w i t h t h e e x p r e s s i o n " p e n a l t i e s p r o p o r t i o n a l t o t h e s e r i o u s n e s s of t h e s e o f f e n c e s , " and i n d i c a t e d t h a t he w a s s t i l l somewhat confused about t h e R e s o l u t i o n b o t h as t o c o n t e n t and t h e need for it. I n h i s view, i t s c o n t e n t s were e i t h e r c o n t r a d i c t i n g t h e p r o v i s i o n s of A r t i c l e 3 of t h e Montreal Convention, o r simply r e p e a t i n g t h e s e , i n which c a s e H f u r t h e r shared t h e o p i n i o n of t h o s e e t h e r e was no need f o r i t s a d o p t i o n . d e l e g a t e s who considered t h a t a d v i c e on domestic l e g i s l a t i o n f e l l o u t s i d e t h e purview of t h e Conference. 9. The Delegate of T u n i s i a i n d i c a t e d t h a t a l t h o u g h h i s D e l e g a t i o n had no d i f f i c u l t y f o r t h e moment i n a c c e p t i n g t h e D r a f t R e s o l u t i o n , i t might b e more a p p r o p r i a t e f o r t h e Conference t o p r e s e n t t h e R e s o l u t i o n t o t h e I C A O Council f o r a d o p t i o n by t h a t body.
10. There were no f u r t h e r comments on t h e D r a f t R e s o l u t i o n p r e s e n t e d by t h e D e l e g a t i o n of A r g e n t i n a . The Chairman summarized t h e d i s c u s s i o n which had j u s t t a k e n p l a c e , and observed t h a t s i n c e v e r y few D e l e g a t i o n s had t a k e n t h e f l o o r , it w a s d i f f i c u l t f o r him t o determine t h e Commission of t h e Whole's g e n e r a l p o s i t i o n on t h i s s u b j e c t . H e t h e n i n v i t e d t h e D e l e g a t i o n of Argentina o r one of t h e D e l e g a t i o n s which had Co-sponsored t h e paper t o t a k e t h e f l o o r .
11. The D e l e g a t i o n of A r g e n t i n a , r e f e r r i n g t o t h e o b j e c t i o n s which had been r a i s e d on t h e t e x t of t h e D r a f t R e s o l u t i o n , i n d i c a t e d t h a t t h e wording of t h e f i n a l d r a f t could be amended i n c o n s u l t a t i o n w i t h t h e ICAO S e c r e t a r i a t . With r e g a r d t o s u b s t a n c e , he wished t o c l a r i f y t h a t t h e document simply recommended t o S t a t e s t h a t t h e y c r e a t e t h e n e c e s s a r y l e g i s l a t i o n , i n c l u d i n g t h e o u t l i n i n g of o f f e n c e s and p e n a l t i e s , i n o r d e r t o be a b l e t o a p p l y t h e Montreal Convention. As w a s t h e c a s e w i t h t h e Conventions of Tokyo and The Hague, t h e Montreal Convention was dependent upon such domestic l e g i s l a t i o n i n o r d e r t o b e applied. I t w a s h i s impression and t h a t of t h e D e l e g a t i o n s which had Co-sponsored t h e d r a f t r e s o l u t i o n t h a t t h e Conference w a s t h e a p p r o p r i a t e body
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f o r i t s adoption. H e t h e n i n d i c a t e d t h a t t h e Delegation of Argentina as w e l l as t h e Co-sponsors would b e w i l l i n g t o accept t h e d e c i s i o n of t h e Commission of t h e Whole on t h i s s u b j e c t . 12. The D i r e c t o r of t h e Legal Bureau informed t h e Commission of t h e Whole t h a t t h e i s s u e of domestic implementation of t h e d i f f e r e n t Conventions had been t h e s u b j e c t of d i s c u s s i o n by b o t h t h e I C A 0 Council and t h e Assembly. In this r e s p e c t , t h e R e s o l u t i o n on t h e safeguarding of c i v i l a v i a t i o n a g a i n s t a c t s of unlawful i n t e r f e r e n c e , adopted unanimously by t h e Assembly a t i t s 26th S e s s i o n , contained n o t a recommendation b u t an a p p e a l t o C o n t r a c t i n g S t a t e s t o g i v e s p e c i a l a t t e n t i o n t o t h e a d o p t i o n of adequate measures a g a i n s t persons committing a c t s a g a i n s t t h e s a f e t y of c i v i l a v i a t i o n ; and i n p a r t i c u l a r t o i n c l u d e i n t h e i r l e g i s l a t i o n s p r o v i s i o n s f o r t h e s e v e r e punishment of such persons. The t e x t adopted by t h e Assembly had t h e advantage t h a t it adopted t h e same wording as t h e Convent i o n s .
13. The Chairman suggested t h a t t h e Commission of t h e Whole resume i t s d i s c u s s i o n of t h e D r a f t R e s o l u t i o n presented by Argentina a f t e r t h e r e c e s s , then turned t h e meeting's a t t e n t i o n t o t h e Draft Resolution of t h e I n t e r n a t i o n a l Conference on A i r Law, d e a l i n g w i t h prevent i v e measures and t e c h n i c a l a s s i s t a n c e ( V I A Doc No. 38).
14. The Delegate of t h e United Kingdom wished t o r a i s e two p o i n t s on t h i s subject. The f i r s t concerned a d r a f t i n g s u g g e s t i o n f o r t h e f o u r t h preambular c l a u s e which r e f e r r e d t o t h e d i f f i c u l t i e s faced by c e r t a i n S t a t e s i n implementing prevent i v e measures. He suggested t h a t t h e word " f u l l y " b e i n s e r t e d i n f r o n t of "implementing" i n o r d e r t o avoid m i s i n t e r p r e t a t i o n , so t h a t t h e c l a u s e would r e a d I'. .some S t a t e s , i n p a r t i c u l a r developing S t a t e s , s t i l l f a c e d i f f i c u l t i e s i n f u l l x implementing p r e v e n t i v e measures...".
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15. The second p o i n t r a i s e d by t h e Delegate of t h e United Kingdom concerned t h e s u b s t a n c e of t h e t h i r d r e s o l v i n g c l a u s e , which c a l l e d f o r i n c r e a s i n g t e c h n i c a l , f i n a n c i a l and m a t e r i a l a s s i s t a n c e by t h e i n t e r n a t i o n a l community. I n t h i s c o n t e x t t h e Delegate of t h e United Kingdom, while expressing h i s agreement w i t h t h e p r i n c i p l e s upon which t h i s r e s o l v i n g c l a u s e was b a s e d , d i d n o t view t h e Conference as an a p p r o p r i a t e forum f o r d i s c u s s i n g funding o r t e c h n i c a l a s s i s t a n c e , and i n d i c a t e d t h a t h i s D e l e g a t i o n ' s a u t h o r i t y d i d n o t extend t o s u p p o r t i n g recommendations r e l a t e d t o t h e i n c r e a s e d funding of t e c h n i c a l a s s i s t a n c e a c t i v i t i e s .
16. The D e l e g a t e of Mexico wished t o b e a s s o c i a t e d w i t h t h e comments made by t h e Delegate of t h e United Kingdom on t h e t e x t of t h e f o u r t h preambular c l a u s e . The Chairman then asked whether any d e l e g a t i o n s had d i f f i c u l t i e s w i t h t h i s s u g g e s t i o n made by t h e Delegate of t h e United Kingdom, whereupon t h e Delegate of Senegal i n d i c a t e d t h a t while h i s d e l e g a t i o n would have p r e f e r r e d n o t t o amend t h i s c l a u s e , i t was prepared t o a c c e p t t h e amendment i n t h e i n t e r e s t of reaching a consensus. He then r e f e r r e d t o a p r o p o s a l made e a r l i e r by h i s d e l e g a t i o n t o s u b s t i t u t e t h e word "notamment" f o r "en p a r t i c u l i e r " i n t h e French v e r s i o n of t h e t e x t .
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17. The Chairman noted t h e d r a f t i n g s u g g e s t i o n made by t h e D e l e g a t e of Senegal, t h e n i n d i c a t e d t h a t i f t h e r e were no f u r t h e r comments, i n accordance with-normal procedure t h e t e x t of t h e D r a f t R e s o l u t i o n could b e .adopted by t h e Conference without a v o t e , provided t h a t p o s i t i o n s of t h e d e l e g a t i o n s which had expressed d i f f i c u l t i e s w i t h i t could be r e f l e c t e d i n t h e r e p o r t . Since t h e R e s o l u t i o n appeared s a t i s f a c t o r y t o everyone, t h e Chairman considered i t as adopted i n p r i n c i p l e .
18. The Chairman t h e n i n v i t e d comments from D e l e g a t i o n s on t h e r e v i s e d t e x t of t h e D r a f t F i n a l Act ( V I A Doc No. 3 9 ) . H e informed t h e meeting t h a t i n i n t h e E n g l i s h v e r s i o n , t h e l a s t l i n e of t h e f i r s t paragraph should r e a d "done a t Montreal" i n s t e a d of "signed a t Montreal," and t h a t t h i s change would a p p l y t o t h e o t h e r language v e r s i o n s a s w e l l . There were no f u r t h e r comments on t h e t e x t of t h e D r a f t F i n a l Act. 19. Returning t o t h e s u b j e c t of t h e D r a f t R e s o l u t i o n p r e s e n t e d by t h e D e l e g a t i o n of Argentina i n V I A Doc No. 3 6 , t h e Chairman i n v i t e d f u r t h e r comments from d e l e g a t i o n s . The D e l e g a t e of Argentina t h e n took t h e f l o o r t o inform t h e Commission of t h e Whole t h a t , i n view of t h e comments made d u r i n g d i s c u s s i o n of t h i s p r o p o s a l a s w e l l as c o n s u l t a t i o n s w i t h o t h e r d e l e g a t i o n s undertaken d u r i n g t h e r e c e s s , t h e Delegation of A r g e n t i n a and t h e Co-sponsoring d e l e g a t i o n s would n o t i n s i s t upon f u r t h e r c o n s i d e r a t i o n of t h i s i t e m , i n o r d e r t o s a v e t i m e f o r d i s c u s s i o n of o t h e r i s s u e s r e l a t e d t o t h e P r o t o c o l . The Chairman thanked t h e D e l e g a t i o n of Argentina f o r t h e s p i r i t of co-operation it had shown towards t h e rest of t h e Conference.
'
20. The Chairman t h e n i n v i t e d t h e F i r s t Vice-president of t h e Conference, t h e D e l e g a t e of Kenya, t o inform t h e Commission of t h e Whole of t h e outcome of c o n s u l t a t i o n s undertaken s i n c e t h e morning meeting. The D e l e g a t e of Kenya expressed h i s thanks t o t h e Chairman and d e l e g a t i o n s p r e s e n t a t t h e Conference f o r t h e e f f i c i e n c y and c o - o p e r a t i o n w i t h which t h e y had c a r r i e d o u t t h e He t h e n r e p o r t e d t h a t a consensus had emerged on o b j e c t i v e s of t h e P r o t o c o l . t h e two i s s u e s l e f t o u t s t a n d i n g a t t h e c l o s e of t h e morning meeting, i.e. t h e i n c l u s i o n of t h e t e r m " t e r r o r i s m " i n t h e preambular p r o v i s i o n s of t h e P r o t o c o l , and t h e i n c l u s i o n of t h r e a t as a s e p a r a t e and d i s t i n c t o f f e n c e . As a r e s u l t of c o n s u l t a t i o n s , it had been agreed t h a t t h e s e two concepts would b e excluded from t h e d r a f t P r o t o c o l .
21. The Chairman expressed h i s thanks t o t h e D e l e g a t e of Kenya f o r h i s o u t s t a n d i n g work c a r r i e d o u t i n such a l i m i t e d t i m e , and thanked t h e d e l e g a t i o n s p r e s e n t f o r t h e s p i r i t o f C o - o p e r ' a t i o n which t h e y had H e t h e n informed t h e Commission of t h e Whole t h a t it had demonstrated. concluded i t s work on t h e s u b s t a n c e of t h e Conference, and t h a t it would proceed t o a f i n a l r e a d i n g of t h e d r a f t P r o t o c o l and t h e F i n a l Act a t i t s n e x t meeting
(The meeting adjourned a t 1450 hours )
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DRAFT F i f t e e n t h Meeting Commission of t h e Whole
FIFTEENTH MEETING OF THE COMMISSION O THE WHOLE F (Monday, 2 2 February 1988, a t 1000 h o u r s )
Chairman:
1. The Chairman s t a t e d t h e t e x t of t h e d r a f t F i n a l ( V I A Doc No. 4 2 ) t o determine would be c a l l e d t o approve and

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t h a t t h e Commission of t h e Whole would examine Act (Via Doc No. 41) and t h e d r a f t P r o t o c o l t h e i r t e c h n i c a l accuracy, a f t e r which a P l e n a r y adopt both t e x t s .
2. The Executive S e c r e t a r y drew a t t e n t i o n t o s e v e r a l e d i t o r i a l e r r o r s which would be r e f l e c t e d , as n e c e s s a r y , i n a l l f o u r language v e r s i o n s .

3. There were no comments on V I A Doc No. 41. t h e f l o o r f o r d i s c u s s i o n of VIA Doc No. 4 2 .
The Chairman t h e n opened
4. The D e l e g a t e of t h e United S t a t e s of America, as one of t h e d e p o s i t a r y governments, r e q u e s t e d c l a r i f i c a t i o n by t h e Executive S e c r e t a r y on t h e wording of A r t i c l e V, paragraph 3 . The i n t e r p r e t a t i o n o f h e r d e l e g a t i o n , based on m u l t i l a t e r a l t r e a t y p r a c t i c e s , w a s t h a t instruments of r a t i f i c a t i o n o r a c c e s s i o n could be d e p o s i t e d w i t h any of t h e f o u r D e p o s i t a r i e s , i . e . e i t h e r w i t h t h e Union of S o v i e t S o c i a l i s t Republics, t h e United Kingdom, t h e United S t a t e s of America o r t h e I n t e r n a t i o n a l C i v i l A v i a t i o n Organization. 5. The Executive S e c r e t a r y reconf inned t h e i n t e r p r e t a t i o n which had been reached i n 1970 (The Hague Convention) and i n 1971 (Montreal Convention), t h a t t h e d e p o s i t a r y system was intended t o be a l t e r n a t i v e , n o t cumulative. He d i d concede, however, t h a t t h e t e x t might n o t be c l e a r a s new language had been introduced. I n o r d e r t o c l a r i f y t h i s t e x t and make i t c o n s i s t e n t w i t h A r t i c l e 1 5 of t h e Montreal Convention, he suggested t h e wording "Instruments of r a t i f i c a t i o n s h a l l b e d e p o s i t e d w i t h t h e Governments of t h e Union of S o v i e t S o c i a l i s t Republics, t h e United Kingdom of Great B r i t a i n and Northern I r e l a n d , t h e United S t a t e s of America and with t h e I n t e r n a t i o n a l C i v i l A v i a t i o n O r g a n i z a t i o n , which a r e hereby d e s i g n a t e d a s t h e D e p o s i t a r i e s .It, ( i . e . r e p l a c e "or" i n t h e t h i r d l i n e w i t h "and" and a f t e r "Northern I r e l a n d " d e l e t e "and" and i n s e r t a comma.
6. The D e l e g a t e of t h e United Kingdom, as Chairman of t h e D r a f t i n g Committee, reminded t h e Delegates t h a t t h e wording of t h i s paragraph had been d i s c u s s e d i n t h e D r a f t i n g Committee. I n r e l a t i o n t o t h e q u e s t i o n of "or" v e r s u s "and", he s t r e s s e d t h a t u s e of e i t h e r word would n o t change t h e e x i s t i n g S t a t e p r a c t i c e t o d e p o s i t w i t h one o r more of t h e d e p o s i t a r y governments. However, as I C A 0 was n o t a government, it would be i n c o r r e c t , i n h i s view, t o d e l e t e "and" b e f o r e " t h e United S t a t e s of America". The remaining q u e s t i o n was whether t h e "or" should remain o r b e changed t o "and".
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7. The D e l e g a t e of C h i l e s t a t e d t h a t h i s D e l e g a t i o n , a s w e l l as some o t h e r L a t i n American D e l e g a t i o n s , would l i k e t h i s paragraph c l a r i f i e d because, i n Spanish, t h e wording r e p r e s e n t e d a cumulative system. I f t h e word "or" H e d i d n o t want "or" remained, i t would imply t h a t I C A 0 w a s a government. r e p l a c e d by "and".
9. The D e l e g a t e of t h e United S t a t e s f e l t t h a t D e l e g a t e s ' i n t e r p r e t a t i o n of t h i s paragraph was uniform; it was t h e phraseology which was c r e a t i n g difficulties. She favoured t h e s o l u t i o n made by t h e Executive S e c r e t a r y ; i t r e f l e c t e d t h e i n t e n t of a l l D e l e g a t i o n s and was c o n s i s t e n t w i t h t h e Montreal Convent i o n .
10. The D e l e g a t e of Peru agreed w i t h t h e D e l e g a t e of t h e United S t a t e s of America. However, i f t h e customary p r a c t i c e were f o l l o w e d , t h e p r o p o s a l s made by t h e Executive S e c r e t a r y and t h e Delegate of P a k i s t a n would have t o be So t h a t t h e Spanish language v e r s i o n of t h e t e x t would c l e a r l y considered. r e f l e c t common p r a c t i c e , he suggested a l s o d e l e t i n g "and" b e f o r e "Northern " s h a l l b e d e p o s i t e d e i t h e r w i t h t h e Government I r e l a n d " . Thus, i t would r e a d : of t h e Union of S o v i e t S o c i a l i s t Republics, t h e United Kingdom of Great B r i t a i n , Northern I r e l a n d , t h e United S t a t e s of America e t c .I1
11. The D e l e g a t e of Jamaica supported t h e p r o p o s a l of t h e D e l e g a t e of P a k i s t a n t o d e l e t e "and" b e f o r e " t h e USA" w i t h no f u r t h e r changes t o t h e r e s t of t h e paragraph.
12. The D e l e g a t e of S w i t z e r l a n d suggested t h a t , a t l e a s t f o r t h e French language v e r s i o n , i f more e x a c t i t u d e was needed r e g a r d i n g t h e d e p o s i t a r i e s , t h e following wording could b e used: "Instruments of r a t i f i c a t i o n s h a l l be d e p o s i t e d w i t h t h e Government of t h e Union of S o v i e t S o c i a l i s t Republics o r t h e United Kingdom of Great B r i t a i n and Northern I r e l a n d o r t h e United S t a t e s of America o r w i t h t h e I n t e r n a t i o n a l C i v i l A v i a t i o n Organization".
13. The D e l e g a t e of Venezuela f e l t t h a t t h i s paragraph w a s a l r e a d y q u i t e c l e a r a l t h o u g h he could a g r e e t o r e p l a c e "or" b e f o r e "with t h e I n t e r n a t i o n a l C i v i l A v i a t i o n Organization" w i t h a comma. R e f e r r i n g t o t h e s t a t e m e n t made by t h e D e l e g a t e of t h e United S t a t e s of America, i t w a s p o i n t e d o u t t h a t t h i s had a l r e a d y been d i s c u s s e d i n t h e D r a f t i n g Committee and P l e n a r y w i t h no o p p o s i t i o n . However, he f e l t t h a t t h e e x i s t i n g t e x t could remain provided t h e understanding of i t s i n t e r p r e t a t i o n was r e f l e c t e d i n t h e minutes; t h i s was supported by t h e D e l e g a t e of t h e United S t a t e s of America.
14. The D e l e g a t e o f Sweden s t r e s s e d t h a t , d u e t o t r a n s l a t i o n d i f f i c u l t i e s , t h i s p o i n t ( i.e. "or:" v e r s u s "and") must b e made v e r y c l e a r . Some s u g g e s t i o n s a l r e a d y s u b m i t t e d , i n p a r t i c u l a r t h o s e of t h e D e l e g a t e s of

--`,,```,,,,````-`-`,,`,,`,`,,`---
a. The D e l e g a t e of P a k i s t a n , supported by t h e D e l e g a t e of Mexico, f e l t t h a t t h e i n t e n t i o n should be c l e a r l y s t a t e d r a t h e r t h a n r e l y i n g on p a s t Two p r o p o s a l s were o f f e r e d : t h e d e l e t i o n of "and" b e f o r e " t h e practices. United S t a t e s of America", o r t h e a d d i t i o n of t h e word "any", i . e . "deposited w i t h any of t h e governments". T h i s l a t t e r s u g g e s t i o n was supported by t h e D e l e g a t e of Ghana.
- 119-
P a k i s t a n and S w i t z e r l a n d , were c l e a r e r i n regard t o s t r e s s i n g t h e a l t e r n a t i v e , r a t h e r t h a n t h e cumulative, s y s t e m t h a n t h e one made by t h e Executive Secretary.
15. The D e l e g a t e of A u s t r i a pointed o u t t h a t i f t h e wording of A r t i c l e V were a l t e r e d , corresponding changes would need t o be made i n A r t i c l e V I 1 (paragraph 3 ) and A r t i c l e V I 1 1 (paragraph 1 ) . It a l s o had t o b e c l e a r l y s t a t e d one t h a t t h e d e p o s i t of w r i t t e n n o t i f i c a t i o n t o - of t h e D e p o s i t a r i e s was sufficient. Although he favoured r e t a i n i n g t h e e x i s t i n g t e x t , he would a g r e e t o d e l e t e "and" b e f o r e " t h e United S t a t e s of America" and r e t a i n "or".
16. The Delegate of t h e United Kingdom reminded t h e Commission t h a t t h e D r a f t i n g Committee had been very conscious of t h e f o r m u l a t i o n used i n t h e Montreal Convention ( i . e . t h e u s e of "and"). However, t h e D e l e g a t e f e l t t h a t ambiguity s t i l l e x i s t e d ; t h e understanding t h a t t h e d e p o s i t a r y system was intended t o be a l t e r n a t i v e was n o t u n i v e r s a l . I f t h e p r o v i s i o n were t o read: "Instruments of r a t i f i c a t i o n s h a l l be d e p o s i t e d w i t h any one o r more of t h e following . . . ' I , t h i s would r e t a i n t h e a b i l i t y of S t a t e s t o d e p o s i t w i t h one o r more of t h e D e p o s i t a r i e s i n accordance w i t h t h e i r n a t i o n a l p r a c t i c e s . Corresponding changes would t h e n need t o be r e f l e c t e d i n A r t i c l e s V I 1 and V I I I .
The Chairman o u t l i n e d t h r e e g e n e r a l c o n c l u s i o n s . The f i r s t was t h a t i n t e r p r e t a t i o n by D e l e g a t e s of t h e a r t i c l e w a s uniform. The second was t h a t t h e p o s s i b i l i t y of d e p o s i t i n g t h e instrument w i t h more t h a n one Government should n o t b e excluded. The t h i r d w a s t h a t , f o r reasons of c l a r i t y , some Delegations now supported a change t o t h e wording of t h i s p r o v i s i o n . In p a r t i c u l a r , t h e p r o p o s a l of t h e Delegate of P a k i s t a n had r e c e i v e d a g r e a t d e a l of s u p p o r t , w i t h t h e r i s k of m i s i n t e r p r e t a t i o n being s m a l l . He f e l t t h a t t h i s p r o p o s a l would be a c c e p t a b l e t o t h e D e l e g a t i o n s , taking i n t o account adjustments proposed by t h e Delegates of t h e United Kingdom and A u s t r i a .
17.
A t t h e r e q u e s t of t h e Chairman, t h e Executive S e c r e t a r y read t h e t e x t i n c o r p o r a t i n g t h e m o d i f i c a t i o n s proposed by t h e D e l e g a t e of Pakistan: "Instruments of r a t i f i c a t i o n s h a l l b e d e p o s i t e d w i t h any of t h e Governments of t h e Union of S o v i e t S o c i a l i s t Republics, t h e United Kingdom of Great B r i t a i n and Northern I r e l a n d , t h e United S t a t e s of America o r w i t h t h e I n t e r n a t i o n a l C i v i l A v i a t i o n Organization which a r e hereby d e s i g n a t e d as t h e D e p o s i t a r i e s . I 1 Consequent amendment would be r e q u i r e d i n A r t i c l e V I I , paragraph 3 and Moreover, he A r t i c l e V I I I , paragraphs 1 and 2 ("any of t h e D e p o s i t a r i e s " ) . f e l t t h a t A r t i c l e V , paragraph 3 merited f u r t h e r d i s c u s s i o n because "with any of t h e Governments" could cause misunderstandings, implying t h a t t h e r e could be more t h a n one government i n any of t h e S t a t e s .
18.
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19. The D e l e g a t e of Kenya, supported by t h e D e l e g a t e s of A u s t r i a , France, t h e Kingdom of t h e N e t h e r l a n d s , Canada, T u n i s i a , Colombia and Venezuela, d i d n o t f a v o u r amending t h e P r o t o c o l . A s it w a s s o c l o s e l y l i n k e d w i t h t h e Montreal Convention, any changes t o i t would n e c e s s i t a t e changes t o t h e Convention i t s e l f . A s an instrument of i n t e r n a t i o n a l l a w , t h e r e was an i n t e r n a t i o n a l p r a c t i c e which would apply f o r i t s i n t e r p r e t a t i o n .
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DRAFT F i f t een t h Meet ing Commission of t h e Whole
120 -
20. The D e l e g a t e of P a k i s t a n w a s of t h e o p i n i o n t h a t t h e t e x t had a l r e a d y d e p a r t e d from t h e Montreal Convention by t h e a d d i t i o n o f t h e I n t e r n a t i o n a l C i v i l A v i a t i o n Organization a s a Depositary. To b e c o n s i s t e n t w i t h t h e Montreal Convention, h e favoured t h e t e x t proposed by t h e Executive S e c r e t a r y . I f t h e e x i s t i n g t e x t remained, he f e l t t h a t a f o o t n o t e should b e added s t i p u l a t i n g t h a t where t h e t e x t read "or" , t h e meaning was "and".
21. The D e l e g a t e of A u s t r a l i a endorsed t h e p r o p o s a l made by t h e D e l e g a t e of P a k i s t a n . H e agreed w i t h t h a t p a r t of t h e p r o p o s a l of t h e Executive S e c r e t a r y t o r e p l a c e llorl' w i t h "and" a s t h i s would avoid t h e impression t h a t I n s t r u m e n t s of r a t i f i c a t i o n needed t o b e d e p o s i t e d w i t h a l l t h r e e Governments o r with t h e I n t e r n a t i o n a l C i v i l Aviation Organization.
22. The D e l e g a t e of Senegal supported t h e D e l e g a t e of P a k i s t a n ' s proposal. However, i n t h e s p i r i t of compromise, he favoured r e t e n t i o n of t h e e x i s t i n g t e x t w i t h t h e u n d e r s t a n d i n g t h a t I n s t r u m e n t s of r a t i f i c a t i o n be d e p o s i t e d w i t h one of t h e f o u r D e p o s i t a r i e s .
The Chairman r e s t a t e d t h e p r o p o s a l made by t h e D e l e g a t e of P a k i s t a n , i . e . t h e t e x t remain v i r t u a l l y as formulated except f o r t h e replacement of "or" w i t h "and". A s no o b j e c t i o n s were v o i c e d , t h e p r o p o s a l was adopted.
24. The D e l e g a t e of Jamaica sought f u r t h e r c l a r i f i c a t i o n . H e had understood t h a t t h e D e l e g a t e of P a k i s t a n had a c t u a l l y submitted two p r o p o s a l s : e i t h e r t h e d e l e t i o n of "and" ( b e f o r e " t h e United S t a t e s of America") and r e t e n t i o n o f "or" o r t h e a d d i t i o n of "any"; i t was n o t n e c e s s a r y t o i n c l u d e both. H e himself favoured t h e f i r s t . H e b e l i e v e d t h e document i t s e l f should b e as c l e a r as p o s s i b l e w i t h i t s i n t e r p r e t a t i o n c o n t a i n e d t h e r e i n , r a t h e r t h a n i n a s e p a r a t e document.
23.
."
26. The Chairman c l a r i f i e d a q u e s t i o n from t h e D e l e g a t e of Mexico who pointed o u t t h a t t h i s p r o p o s a l was n o t t h e o r i g i n a l one; t h e Chairman s t a t e d t h a t i t was t h e r e v i s e d v e r s i o n .
27. The D e l e g a t e of P a k i s t a n s t a t e d t h a t t h i s was n o t h i s p r o p o s a l . He had made two s u g g e s t i o n s : t h e a d d i t i o n of t h e word "any" o r replacement of t h e word "and" a f t e r " I r e l a n d " w i t h a comma. H e had n o t suggested s u b s t i t u t i n g llor1l w i t h "and". 28. The D e l e g a t e of A u s t r i a r e i t e r a t e d h i s p o s i t i o n of r e t e n t i o n of t h e e x i s t i n g t e x t , adding t h a t h e b e l i e v e d a d e c i s i o n had a l r e a d y been t a k e n .
--`,,```,,,,````-`-`,,`,,`,`,,`---
25. The Chairman explained t h a t t h e s o l u t i o n adopted was c o n s i s t e n t w i t h t h e Montreal Convention and w i t h t h e common u n d e r s t a n d i n g . To c l a r i f y t h i s , h e r e q u e s t e d t h e Executive S e c r e t a r y t o read o u t t h e p r o p o s a l . Reiterating t h a t t h i s was a m a t t e r s o l e l y of i n t e r p r e t a t i o n which had a l r e a d y been adopted by consensus, t h e Executive S e c r e t a r y s t a t e d t h a t t h e wording as endorsed was: ''Instruments of r a t i f i c a t i o n s h a l l b e d e p o s i t e d w i t h t h e Governments of t h e Union of S o v i e t S o c i a l i s t Republics, t h e United Kingdom of Great B r i t a i n and Northern I r e l a n d , t h e United S t a t e s of America and w i t h t h e I n t e r n a t i o n a l C i v i l A v i a t i o n Organization which a r e hereby d e s i g n a t e d t h e D e p o s i t a r i e s
- 121 -
29. A f t e r a b r i e f c o n s u l t a t i o n , t h e Executive S e c r e t a r y a g a i n read o u t t h e above s t a t e m e n t t h a t was considered t o b e c l o s e s t t o t h e Montreal Convention and which i t was b e l i e v e d was t h e p r o p o s a l of t h e D e l e g a t e of Pakistan.
30. The D e l e g a t e of Mexico f e l t t h a t , i n t h e Spanish language, t h i s t e x t would be meaningless and he could n o t a g r e e t h a t an e d i t o r i a l e r r o r should be perpetuated. Of t h e two p r o p o s a l s made by t h e Executive S e c r e t a r y , h i s p r e f e r e n c e was f o r t h e f i r s t . 31. The D e l e g a t e of Canada agreed w i t h r e p l a c i n g ''and" I r e l a n d " w i t h a comma b u t f e l t t h a t "or" could remain. a f t e r "Northern
32. The D e l e g a t e of t h e United Kingdom s t r e s s e d t h a t t h i s m a t t e r had been d i s c u s s e d i n t h e D r a f t i n g Committee a t g r e a t l e n g t h ; t h e r e had been a consensus regarding i t s i n t e r p r e t a t i o n b u t d i f f i c u l t y e x i s t e d regarding phraseology. Although t h e D r a f t i n g Committee attempted t o b e c o n s i s t e n t w i t h t h e wording used i n t h e Montreal Convention, i t was f e l t t h a t "or" was more a p p r o p r i a t e ; o t h e r w i s e ICA0 would be viewed a s an a d d i t i o n a l , r a t h e r t h a n a l t e r n a t i v e , requirement. H e f e l t t h a t , even though t h e t e x t was n o t p e r f e c t , it would be s a t i s f a c t o r y provided t h i s understanding was r e f l e c t e d i n t h e r e c o r d . Similar views were expressed by t h e Delegates of P a k i s t a n and Jamaica.
33. The Commission of t h e Whole accepted t h e s u g g e s t i o n proposed by t h e D e l e g a t e of t h e United Kingdom t o r e t a i n t h e t e x t of A r t i c l e V, paragraph 3 as originally drafted.
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34. The D e l e g a t e o f P a k i s t a n t h e n p r o p o s e d r e p l a c i n g "added" A r t i c l e I I , paragraph 2, second l i n e , w i t h " i n s e r t e d " . There were object ions.
in no
35. A s t h e r e were no more comments, t h e Commission of t h e Whole approved t h e t e x t of t h e d r a f t P r o t o c o l a s o u t l i n e d i n V I A Doc No. 42 w i t h t h e t e c h n i c a l adjustments t h a t had been made. 36. A s t h i s was t h e l a s t meeting of t h e Commission of t h e Whole, t h e Chairman again i n v i t e d D e l e g a t e s t o make any comments. A s no Delegation wished t o t a k e t h e f l o o r , t h e S i x t e e n t h Meeting of t h e Commission of t h e Whole w a s declared closed. (The meeting adjourned a t 1215 hours )
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- 123 -
DRAFT Eighth P l e n a r y Meeting
EIGHTH PLENARY MEETING
(Monday, 22 February 1988, a t 1215 h o u r s )
President:
1. The Chairman i n v i t e d t h e Conference t o approve t h e t e x t of t h e F i n a l Act and adopt t h e t e x t of t h e d r a f t P r o t o c o l as recommended by t h e Commission of t h e Whole.
2. The Delegate of Mexico queried t h e p h r a s e "estados n e c e s i t a d o s " ( " i n need") i n t h e f o u r t h WHEREAS c l a u s e of t h e d r a f t F i n a l Act i n V I A Doc No. 41. A s t h i s had a n e g a t i v e c o n n o t a t i o n i n Spanish, he suggested d e l e t i n g " t o S t a t e s i n need". T h i s view was supported by t h e Delegates of S p a i n , Costa Rica, Venezuela, Peru, Cuba, A r g e n t i n a , Ecuador, Colombia, C h i l e , A l g e r i a , Jamaica, P a k i s t a n and Senegal.
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3. The D e l e g a t e of P a k i s t a n , p o i n t i n g o u t t h a t t h i s p h r a s e a l s o appeared i n paragraph 3 , suggested t h e wording " t o S t a t e s r e q u i r i n g such a s s i s t a n c e " o r

s i m i l a r . The r e t a i n e d "notamment dveloppement".
les Etats c a l l e d a t t e n t i o n t o t h e French t e x t which had en dveloppement" and n o t "des E t a t s en
4. The Chairman, r e f e r r i n g t o t h e comments of t h e D e l e g a t e of Senegal, s t a t e d t h a t t h e t e x t could e a s i l y b e a l t e r e d w i t h corresponding changes i n a l l language v e r s i o n s . The Executive S e c r e t a r y then read o u t t h e t e x t a s amended i n t h e f o u r languages. T h i s f o r m u l a t i o n was adopted.
5. Turning t o t h e p o i n t r a i s e d by t h e D e l e g a t e of P a k i s t a n , t h e Executive S e c r e t a r y f e l t t h a t , as t h e c o n n o t a t i o n was d i f f e r e n t , no change was required.

6. The Conference t h e n adopted t h e F i n a l Act of t h e D r a f t P r o t o c o l w i t h t h e adjustments shown above.
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- 125 NINTH PLENARY MEETING
DRAFT Ninth P l e n a r y Meet in&
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1. This meeting being t h e l a s t t o h e a r g e n e r a l s t a t e m e n t s , t h e D e l e g a t e of A u s t r i a took t h e o p p o r t u n i t y t o e x p r e s s h i s g r a t i t u d e t o t h e Government of Canada f o r i t s i n i t i a t i v e i n sponsoring t h e r e s o l u t i o n t h a t l e d t o t h e development of t h e P r o t o c o l , a r e s o l u t i o n Co-sponsored by A u s t r i a , among o t h e r s . He s t a t e d t h a t t h e adoption by consensus of t h e P r o t o c o l c o n s t i t u t e d a f u r t h e r m i l e s t o n e i n t h e development of i n t e r n a t i o n a l a i r law and r e p r e s e n t e d t a n g i b l e proof of t h e d e t e r m i n a t i o n of t h e i n t e r n a t i o n a l community t o e r a d i c a t e terrorism. A u s t r i a viewed t h e P r o t o c o l as more t h a n l e g a l t h e o r y , s e e i n g it a l s o a s a r e a c t i o n t o t h e t e r r o r i s t a t t a c k on Vienna A i r p o r t i n December 1985. He s t r e s s e d t h a t A u s t r i a b e l i e v e d t h a t c o n f l i c t s should b e r e s o l v e d e x c l u s i v e l y by p e a c e f u l means and t h a t t e r r o r i s m m u s t be t a c k l e d by each S t a t e i n d i v i d u a l l y While, on t h e whole, v e r y s a t i s f i e d w i t h t h e and i n c o - o p e r a t i o n w i t h o t h e r s . adopted t e x t , t h e A u s t r i a n D e l e g a t i o n f e l t t h a t t h e P r o t o c o l could have gone f u r t h e r i n some r e s p e c t s , such as by i n c l u d i n g t h e concept of t h r e a t a s an o f f e n c e , although it was noted t h a t t h i s concept had n o t bcen r e t a i n e d i n o r d e r t o a c h i e v e a consensus. The A u s t r i a n D e l e g a i i o n was p l e a s e d t h a t t h e adopted p h r a s e " f a c i l i t i e s of an a i r p o r t " could be viewed a s covering t h e concept of f a c i l i t i e s o u t s i d e t h e p e r i m e t e r of an a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n b u t e s s e n t i a l t o t h e o p e r a t i o n of such a i r p o r t . T h i s Delegation would be s i g n i n g o n l y t h e F i n a l Act of t h e Conference t h e following day b u t f e l t t h a t t h e P r o t o c o l would soon be approved by t h e A u s t r i a n F e d e r a l Government. The Delegate of A u s t r i a was pleased t o n o t e t h e adoption of a r e s o l u t i o n u r g i n g a l l S t a t e s t o t a k e p r e v e n t i v e measures t o s u p p r e s s t e r r o r i s m a g a i n s t i n t e r n a t i o n a l H e expressed h i s a p p r e c i a t i o n t o t h e P r e s i d e n t and t o t h e c i v i l aviation. Government of Canada and paid t r i b u t e t o t h e Chairman of t h e D r a f t i n g Committee, a s w e l l a s t o t h e I C A O S e c r e t a r i a t , p a r t i c u l a r l y t o D r . M. Milde and h i s c o l l e a g u e s , and t o what t h e Delegate of A u s t r i a termed " t h e well-known ICAO spirit". H e concluded by hoping t h a t t h e s p i r i t of mutual understanding and compromise t h a t had c h a r a c t e r i z e d t h i s Conference would p r e v a i l a t t h e upcoming i n t e r n a t i o n a l conference on m a r i t i m e l a w s i n c e a s i m i l a r r e s u l t t h e r e as had j u s t been achieved i n Montreal would s i g n i f y remarkable p r o g r e s s i n t h e f i e l d of i n t e r n a t i o n a l a n t i F t e r r o r i s t l e g i s l a t i o n .
2. The D e l e g a t e of B r a z i l expressed s a t i s f a c t i o n w i t h t h e r e s u l t s achieved by t h e Conference, s t a t i n g t h a t t h e P r o t o c o l confirmed t h e p r o v i s i o n s t h a t t h e Government of B r a z i l had been t r y i n g t o a p p l y , t h u s showing t h a t B r a z i l had been following t h e r i g h t p a t h r e g a r d i n g t h e s a f e t y of i n t e r n a t i o n a l c i v i l aviation. The B r a z i l i a n Delegation t h e n proclaimed i t s p l e a s u r e a t s i g n i n g t h e P r o t o c o l and extended i t s c o n g r a t u l a t i o n s t o t h e P r e s i d e n t .
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The D e l e g a t e of Poland p r a i s e d t h e P r e s i d e n t f o r t h e e x c e l l e n t manner i n which he had p r e s i d e d o v e r t h e Conference and d e c l a r e d t h a t t h e f o l l o w i n g day t h e P o l i s h D e l e g a t i o n would s i g n t h e P r o t o c o l and F i n a l A c t . H e s t a t e d h i s D e l e g a t i o n s s a t i s f a c t i o n w i t h t h e s o l u t i o n s i n c o r p o r a t e d i n t h e new instrument w h i l e r e g r e t t i n g t h e omission of t h e concept of t h r e a t as an o f f e n c e and t h a t t h e u s e of e x t r a d i t i o n procedures had n o t been expanded. The P o l i s h D e l e g a t i o n s t r e s s e d i t s condemnation of i n t e r n a t i o n a l t e r r o r i s m i n a l l i t s forms and i t s support f o r e f f o r t s t o end unlawful a c t s a g a i n s t a i r p o r t s through expansion of t h e Montreal Convention. The D e l e g a t e of Poland remarked t h a t of g r e a t e s t importance was t h e c o n t e n t of i n s t r u m e n t s , e s p e c i a l l y t h o s e measures allowing f o r t h e punishment, by severe p e n a l t i e s , of p e r s o n s g u i l t y of committing a c t s of v i o l e n c e . H e s t a t e d t h a t o f t e n t h e s e v e r i t y of punishment was p r o p o r t i o n a l t o t h e d e g r e e of damage done o n l y towards t h e c i t i z e n s o r p r o p e r t y of t h e S t a t e where t h e o f f e n d e r was apprehended, w i t h l e s s e r damage t o t h a t S t a t e r e s u l t i n g i n l i g h t e r punishment, and so he b e l i e v e d t h a t i n o r d e r t o e n s u r e punishment p r o p o r t i o n a l t o t h e c r i m e , p r i o r i t y should b e g i v e n t o g r a n t i n g j u r i s d i c t i o n t o He f e l t that the international t h e S t a t e most a f f e c t e d by t h e u n l a w f u l a c t . community should c o n s i d e r c r e a t i n g , as a n e x t s t e p , a P r o t o c o l t o e s t a b l i s h t h i s p r i o r i t y of j u r i s d i c t i o n . I n t h e meantime, h i s government would a c t i n conformity w i t h t h e e x i s t i n g i n s t r u m e n t s . I n concluding, h e expressed t h e hope t h a t t h e i n t e r n a t i o n a l community would comply w i t h t h e s p i r i t and r e s u l t s of t h e Conference, and expressed h i s g r a t i t u d e t o t h e S e c r e t a r i a t and t o D r . M. Milde i n p a r t i c u l a r , f o r t h e i r a s s i s t a n c e i n t h e achievement of t h e s e results. The D e l e g a t e of t h e United Kingdom observed t h a t it w a s t h e i n i t i a t i v e of t h e Canadian M i n i s t e r of T r a n s p o r t , s u p p o r t e d by t h e United Kingdom and o t h e r S t a t e s , t h a t had g i v e n t h e impetus f o r t h i s Conference, t h e s u c c e s s f u l completion of which was due i n g r e a t measure t o t h e chairmanship of M r . K i r s c h , a member of t h e Canadian D e l e g a t i o n . He remarked t h a t a l t h o u g h t h e r e was no r e f e r e n c e t o t e r r o r i s m i n t h e t e x t of t h e P r o t o c o l i t s e l f , a l l knew t h a t i t was t e r r o r i s m , however d e f i n e d , t h a t had brought D e l e g a t i o n s t o t h i s Conference and r a i s e d t h e need f o r t h e P r o t o c o l . H e s t a t e d t h a t t h e y had d i s c u s s e d t h e wording of t h e q u a l i f i e r t o paragraph 1 - and w h i l e it had n o t bis, been changed, h e noted t h a t t h e Preamble had been s l i g h t l y modified t o c l a r i f y H e a l s o assured t h e what was meant by endangering s a f e t y a t an a i r p o r t . Conference t h a t h i s government would c a r e f u l l y s t u d y t h e P r o t o c o l i n o r d e r t o i n c o r p o r a t e it i n t o domestic l a w . I n conclusion, he repeated h i s appreciation f o r t h e e f f o r t s of t h e P r e s i d e n t as w e l l as f o r t h o s e of t h e S e c r e t a r i a t .
3.
4.
5. The D e l e g a t e of France p o i n t e d o u t t h a t France had, from t h e o u t s e t , been a s s o c i a t e d w i t h t h e Canadian i n i t i a t i v e l e a d i n g t o t h e development of t h e P r o t o c o l and had a c t i v e l y p a r t i c i p a t e d i n t h e work of t h e Legal Sub-committee as w e l l as t h a t of t h e Legal Committee. H e c o n g r a t u l a t e d t h e P r e s i d e n t of t h e Conference, t h e Vice-presidents and t h e Chairman of t h e D r a f t i n g Committee as w e l l as t h e P r e s i d e n t of t h e Council, t h e S e c r e t a r y General and t h e S e c r e t a r i a t , f o r t h e i r r o l e s i n t h e s u c c e s s of t h e Conference. H e expressed h i s p l e a s u r e a t s e e i n g t h e Conference adopt by consensus such a t i m e l y and s i g n i f i c a n t instrument and, announcing t h a t t h e t e x t met t h e a p p r o v a l of h i s D e l e g a t i o n , d e c l a r e d i t s i n t e n t i o n t o s i g n t h e F i n a l Act t h e f o l l o w i n g day and t h e P r o t o c o l w i t h i n t h e f o l l o w i n g weeks.
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D W T Ninth Plenary Meeting
6. The D e l e g a t e of t h e Union of S o v i e t S o c i a l i s t Republics d e c l a r e d t h a t an important document had been adopted by t h e Conference, whose s u c c e s s had been ensured by t h e e f f o r t s of a l l D e l e g a t i o n s . He s t a t e d t h a t although many p r o v i s i o n s had been t h e r e s u l t of compromise, t h e main s t r e n g t h of t h e instrument w a s t h a t a l l p o i n t s of view had been considered and t h a t it had r e c e i v e d t h e unanimous support of t h e Conference. He announced t h a t he had been a u t h o r i z e d by h i s government t o s i g n t h e P r o t o c o l . H e considered t h e most important t a s k now f a c i n g S t a t e s t o be t h e implementation of t h e instrument by t a k i n g s p e c i f i c measures, i n c l u d i n g p r e v e n t i v e measures, which was why t h e S o v i e t Delegation had a t t a c h e d such importance t o t h e adoption of a r e s o l u t i o n on p r e v e n t i v e measures. He b e l i e v e d t h e work done by ICAO t o s u p p r e s s t e r r o r i s m t o be b u t p a r t of t h e e f f o r t s being e x e r t e d by t h e United Nations and o t h e r i n t e r n a t i o n a l o r g a n i z a t i o n s , s t a t i n g t h a t h i s D e l e g a t i o n considered co-operation among S t a t e s t o be one of t h e c o r n e r s t o n e s f o r t h e e s t a b l i s h m e n t of i n t e r n a t i o n a l s e c u r i t y and r e a l i z e d t h e need t o e l i m i n a t e t h e underlying c a u s e s of t e r r o r i s m . He explained t h a t t h e S o v i e t Union had always condemned t e r r o r i s t a c t i o n s , no m a t t e r what motives were put f o r t h t o e x p l a i n them, such a s t h e a t t e m p t s sometimes made t o i d e n t i f y n a t i o n a l l i b e r a t i o n movements with terrorist activities. The S o v i e t Union would c o n t i n u e t o f i g h t t e r r o r i s m i n a l l i t s forms and b e l i e v e d t h a t t o e r a d i c a t e t e r r o r i s m it was n e c e s s a r y t o r e i n f o r c e t r u s t among S t a t e s and t h a t S t a t e s must r e f u s e t o u s e f o r c e i n international relations. He t h e n expressed h i s g r a t i t u d e t o t h e P r e s i d e n t of t h e Conference, t h e V i c e - p r e s i d e n t s , t h e P r e s i d e n t of t h e Council, t h e S e c r e t a r y General, t h e Executive S e c r e t a r y and t o a l l members of t h e S e c r e ta r i a t
7. The D e l e g a t e of Venezuela d e c l a r e d t h a t a s p i r i t of c o - o p e r a t i o n had p r e v a i l e d throughout t h e Conference which s i g n a l l e d a new s u c c e s s i n t h e work of ICAO. She b e l i e v e d t h a t t h e P r o t o c o l would s t r e n g t h e n t h e t r i l o g y of Conventions d e a l i n g w i t h a v i a t i o n s e c u r i t y , namely, t h e Tokyo, The Hague and Montreal Conventions. She s t a t e d t h a t Venezuela condemned all forms of i n t e r n a t i o n a l t e r r o r i s m and t h e r e f o r e f e l t s a t i s f i e d w i t h t h e s u c c e s s f u l c o n c l u s i o n of t h e Conference. She then c o n g r a t u l a t e d t h e P r e s i d e n t , t h e f o u r Vice-presidents, t h e Chairman of t h e D r a f t i n g Committee, t h e S e c r e t a r y General, t h e Legal Committee, t h e Legal Sub-committee and t h e Executive S e c r e t a r y f o r t h e i r c o n t r i b u t i o n t o t h e s u c c e s s of t h e Conference.
8. The D e l e g a t e of A l g e r i a expressed h i s D e l e g a t i o n s a p p r e c i a t i o n t o t h e P r e s i d e n t f o r h i s d e c i s i v e r o l e i n t h e s u c c e s s of t h e Conference and observed t h a t A l g e r i a had a c t i v e l y p a r t i c i p a t e d i n i t and i n t h e work of t h e H e d e c l a r e d t h a t t h e i n s t r u m e n t , supported by a broad Legal Committee. consensus, r e f l e c t e d t h e i n t e r n a t i o n a l co-operation t h a t had p r e v a i l e d f o r t h e purpose of s t r e n g t h e n i n g a i r t r a n s p o r t s e c u r i t y . H e commented t h a t i t was n o t enough t o c o n s i d e r o n l y t h e e f f e c t s of v i o l e n c e without viewing i t s underlying c a u s e s and t h a t s o l u t i o n s must be based on j u s t i c e and r e s p e c t f o r t h o s e peoples f i g h t i n g a g a i n s t a l l forms of domination. He a l s o wished t o r e a f f i r m t h a t t h e instrument should s e r v e t h e s a f e t y of passengers on i n t e r n a t i o n a l c i v i l a v i a t i o n and n o t be used t o defend a t t a c k s a g a i n s t t h e t e r r i t o r i a l He concluded w i t h words of c o n g r a t u l a t i o n t o t h e s o v e r e i g n t y of S t a t e s . P r e s i d e n t , D e l e g a t e s , t h e Vice-presidents, t h e S e c r e t a r y General and t h e Secretariat
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- 128 -
9. The D e l e g a t e of I t a l y welcomed t h e adoption by consensus of t h e P r o t o c o l , saying t h a t he b e l i e v e d t h a t t h e c r e a t i o n of l e g a l i n s t r u m e n t s should always b e accompanied by s t r o n g co-operation among S t a t e s . H e expressed h i s Delegations g r a t i t u d e t o t h e Government of Canada f o r i t s i n i t i a t i v e i n t h e adoption of t h e P r o t o c o l which was t i m e l y c o n s i d e r i n g t h e r e c e n t o c c u r r e n c e of e v e n t s which had d e e p l y a f f e c t e d some S t a t e s , p a r t i c u l a r l y I t a l y . He s t a t e d t h a t t h e P r o t o c o l was s a t i s f a c t o r y t o h i s D e l e g a t i o n and, n o t i n g t h a t it d i d n o t d i f f e r s i g n i f i c a n t l y from t h e d r a f t , was p l e a s e d t o announce t h a t h i s D e l e g a t i o n would b e s i g n i n g t h e P r o t o c o l . The D e l e g a t e of I t a l y t h e n r e f e r r e d t o t h e upcoming Conference on maritime law t o b e h e l d i n Rome, e x p l a i n i n g t h a t i t , a l s o , was intended t o f i l l a gap i n e x i s t i n g r e g u l a t i o n s a g a i n s t unlawful i n t e r f e r e n c e , and hoped t h a t t h e s p i r i t of g o o d w i l l and co-operation t h a t had p r e v a i l e d a t t h i s Conference would c o n t i n u e i n Rome. He then r e i t e r a t e d h i s c o n g r a t u l a t i o n s t o t h e P r e s i d e n t of t h e Conference, t h e Chairman of t h e D r a f t i n g Committee, t h e P r e s i d e n t of t h e C o u n c i l , t h e S e c r e t a r y General, t h e Legal Bureau and a l l o t h e r s who had c o n t r i b u t e d t o t h e Conference.
10. The D e l e g a t e of C h i l e extended c o n g r a t u l a t i o n s t o t h e Government of Canada, t h e P r e s i d e n t of t h e Conference, t h e Vice-presidents , t h e P r e s i d e n t of t h e C o u n c i l , t h e S e c r e t a r y General and t h e Executive S e c r e t a r y , as w e l l as t o t h e e n t i r e s t a f f of I C A O . H e a l s o c o n g r a t u l a t e d t h e Chairman of t h e D r a f t i n g Committee, t h e members of each committee and a l l D e l e g a t e s f o r t h e i r s p i r i t of mutual r e s p e c t and co-operation. He recognized t h a t t h e adopted t e x t had been a r r i v e d a t by consensus and d e c l a r e d h i s Delegations s a t i s f a c t i o n w i t h i t . He announced t h e i r i n t e n t i o n t o r a t i f y t h e P r o t o c o l and F i n a l Act and s t a t e d t h a t , having a l r e a d y r a t i f i e d t h e Montreal Convent ion , C h i l e wished t o s u p p o r t as many l a w s a s p o s s i b l e r e g a r d i n g unlawful i n t e r f e r e n c e w i t h i n t e r n a t i o n a l c i v i l aviation. C h i l e condemned all forms of t e r r o r i s m and f o r t h i s r e a s o n t h e Chilean D e l e g a t i o n was dismayed t o s e e d e l e t e d from t h e P r o t o c o l s Preamble t h e mention of t h e concern of t h e Conference about t h e p r o l i f e r a t i o n of t e r r o r i s m throughout t h e world. H e a l s o r e g r e t t e d t h e omission of t h e concept of t h r e a t , and s i m i l a r l y , would have p r e f e r r e d t o see l i s t e d a l l t h o s e measures o r t o o l s t h a t could be used t o perform unlawful a c t s , f e e l i n g t h a t t h e s e omissions provided f o r a l e g a l lacuna which could i n t h e f u t u r e a f f e c t t h e s a f e t y of international airports. He added t h a t s i n c e t h e concept of a i r c r a f t n o t i n s e r v i c e a t an a i r p o r t had been included i n paragraph 1 - he would have l i k e d bis, t o have seen included i n paragraph 2 b i s t o A r t i c l e 5 of t h e Convention t h e p o s s i b i l i t y f o r j u r i s d i c t i o n t o t h e S t a t e of r e g i s t r y of such an a i r c r a f t . I n s p i t e of t h e above, h e w a s p l e a s e d w i t h t h e instrument and r e i t e r a t e d h i s intention t o sign it.
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11. The D e l e g a t e of I n d o n e s i a joined o t h e r D e l e g a t i o n s i n c o n g r a t u l a t i n g t h e P r e s i d e n t of t h e Conference and i n e x p r e s s i n g a p p r e c i a t i o n t o t h e S e c r e t a r i a t as w e l l a s t o t h e Government o f Canada which had t a k e n t h e i n i t i a t i v e t o a d d r e s s t h e s u b j e c t of t h e Conference. H e c a l l e d t h e P r o t o c o l a show-case f o r i n t e r n a t i o n a l understanding and co-operation and s t a t e d t h a t i t r e f l e c t e d t h e p o l i t i c a l w i l l of p a r t i c i p a n t s t o p r e s e r v e t h e s a f e t y of international c i v i l aviation. He a s s u r e d t h e Conference t h a t a l t h o u g h h i s c o u n t r y would soon have a new government, i t would m a i n t a i n i t s p o l i c y of working f o r i n c r e a s e d s a f e t y i n i n t e r n a t i o n a l c i v i l a v i a t i o n , and added t h a t I n d o n e s i a would b e among t h e f i r s t t o r a t i f y t h e P r o t o c o l .
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12. The D e l e g a t e of t h e Kingdom of t h e Netherlands wished t o make c l e a r t h a t although h i s D e l e g a t i o n would n o t b e s i g n i n g t h e P r o t o c o l a t t h e conclusion of t h e Conference, t h e y welcomed i t s adoption by consensus. He thanked t h e P r e s i d e n t , t h e o f f i c e r s of t h e Conference and t h e members of t h e Legal Bureau f o r t h e i r c o n t r i b u t i o n s , and a s s u r e d t h e Conference t h a t t h e Kingdom of t h e Netherlands would s i g n t h e P r o t o c o l i n t h e n e a r f u t u r e . 13. The D e l e g a t e of Ecuador expressed h i s c o n g r a t u l a t i o n s t o t h e P r e s i d e n t of t h e Conference, committee members, t h e Government o f Canada and a l l ICAO s t a f f . He s t a t e d t h a t t h e work of t h e Conference showed a s p i r i t of co-operation and demonstrated t h a t t h e moral conscience of humanity had now t a k e n t h e form of an i n t e r n a t i o n a l consensus condemning a c t s of i n t e r n a t i o n a l t e r r o r i s m . He explained t h a t l e g i s l a t i o n i n Ecuador provided f o r t h e i n c l u s i o n o f , a s w e l l a s s e v e r e p e n a l t i e s f o r , t h o s e a c t s which a r e covered by t h e P r o t o c o l , and s o h i s Delegation would t a k e p l e a s u r e i n s i g n i n g t h e F i n a l A c t , H e was g e n e r a l l y pleased w i t h t h e t e x t of and soon a f t e r w a r d s , t h e P r o t o c o l . t h e P r o t o c o l b u t r e g r e t t e d t h a t t h e concept of t h r e a t had n o t been included. He wished t o n o t e t h a t while Ecuador d i d n o t allow e x t r a d i t i o n of i t s c i t i z e n s , paragraph 2 - t o A r t i c l e 5 of t h e Convention would g i v e Ecuador j u r i s d i c t i o n bis over t h e o f f e n c e s covered i n t h i s paragraph pursuant t o t h e p r o v i s i o n s which a p p l i e d i n i t s p e n a l code, i n o r d e r t h a t p e r p e t r a t o r s would n o t go unpunished.
14. The D e l e g a t e of t h e United S t a t e s thanked t h e P r e s i d e n t f o r h i s e f f o r t s a s b o t h P r e s i d e n t of t h e Conference and Chairman of t h e Working Group of t h e Legal Committee. She a l s o thanked t h e Chairman of t h e D r a f t i n g Committee, t h e F i r s t V i c e - p r e s i d e n t t h e E x e c u t i v e S e c r e t a r y and t h e S e c r e t a r i a t . She d e c l a r e d t h a t t h e p a s t year had p r e s e n t e d a g r e a t o p p o r t u n i t y f o r t h e development of i n t e r n a t i o n a l law on a v e r y worthwhile s u b j e c t , and t h a t t h e unanimous support shown f o r t h e Canadian i n i t i a t i v e leading t o Assembly R e s o l u t i o n A26-4, t h e p r e v a i l i n g s p i r i t of co-operation and t h e adoption by consensus of t h e P r o t o c o l showed t h a t t h e most had been made of t h i s opportunity. I n c o n c l u s i o n , s h e s t a t e d t h a t h e r D e l e g a t i o n looked forward t o signing t h e Protocol.
The D e l e g a t e of Malaysia joined o t h e r s i n e x p r e s s i n g h i s s a t i s f a c t i o n 15. H e remarked t h a t although forming a over t h e s u c c e s s of t h e Conference. d i v e r. s i f i e d group, p a r t i c i p a n t s had been a b l e t o r e a c h a consensus due t o having a c l e a r g o a l supported by t h e d e t e r m i n a t i o n and w i l l of a l l D e l e g a t e s . For t h i s , he thanked t h e Chairman, t h e P r e s i d e n t and S e c r e t a r y General, and D r . M. Milde and h i s s t a f f . Expressions of thanks were a l s o extended t o t h e D r a f t i n g Committee, t h e Government of Canada, and t o a l l D e l e g a t e s . He r e a f f i r m e d h i s Delegations support f o r t h e P r o t o c o l , n o t i n g w i t h p l e a s u r e t h a t no major changes had been made t o t h e d r a f t and d e c l a r e d h i s Delegations i n t e n t i o n t o s i g n t h e P r o t o c o l and F i n a l Act t h e following day. 16. The D e l e g a t e of Kenya thanked t h e Government of Canada, t h e P r e s i d e n t of t h e Conference, t h e ICAO Council and i t s P r e s i d e n t , t h e S e c r e t a r y General, t h e Legal Bureau and t h e e n t i r e s t a f f of ICAO and expressed h i s g r a t i t u d e t o Delegates f o r t h e honour of having appointed him F i r s t Vice-president. He s t a t e d t h a t D e l e g a t e s could t a k e p r i d e i n knowing t h a t t h i s P r o t o c o l had been one of t h e few a n t i - t e r r o r i s t documents t o have been adopted by consensus. He
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d e c l a r e d t h a t having developed such an instrument w a s t h e f i r s t s t e p , t h e second s t e p being t h e implementation of i t s p r o v i s i o n s . H e urged D e l e g a t e s t o c o n t i n u e t o show t h e s p i r i t of goodwill t h a t had p r e v a i l e d a t t h i s Conference t o e n s u r e t h a t t h e P r o t o c o l were implemented. H e b e l i e v e d t h a t t h e b e s t way t o e r a d i c a t e t h e menace of t e r r o r i s m was t o Co-operate n o t o n l y i n e n s u r i n g t h a t c r i m i n a l s were apprehended b u t a l s o through punishment and p r e v e n t i v e measures, and f o r t h i s he c a l l e d upon D e l e g a t e s t o c o n s i d e r t h e p r o v i s i o n s of t h e r e s o l u t i o n t h a t had been appended t o t h e P r o t o c o l . With t h e d e s i r e f o r s a f e c i v i l a v i a t i o n o f t e n hampered by lack of r e s o u r c e s , a p l e a f o r a s s i s t a n c e t o developing S t a t e s had been made, and t h e D e l e g a t e of Kenya f e l t convinced t h a t a s s i s t a n c e would b e forthcoming. He concluded by s t a t i n g h i s i n t e n t i o n t o s i g n t h e F i n a l Act and, s h o r t l y a f t e r w a r d s , t h e P r o t o c o l , and by wishing f e l l o w D e l e g a t e s a good t r i p home. The D e l e g a t e of Colombia extended thanks t o t h e P r e s i d e n t of t h e Conference, t h e S e c r e t a r y General, t h e Executive S e c r e t a r y and h i s c o l l e a g u e s , t h e members of t h e C r e d e n t i a l s Committee, and t h e i n t e r p r e t e r s who had served t h e Conference. She s t a t e d t h a t Colombia had, from t h e b e g i n n i n g , demonstrated i t s i n t e r e s t i n t h e development of t h i s P r o t o c o l and had Co-sponsored t h e paper i n i t i a t e d by Canada. She observed t h a t h e r D e l e g a t i o n w a s p l e a s e d w i t h t h e t e x t of t h e P r o t o c o l a l t h o u g h t h e y would have p r e f e r r e d i t t o i n c l u d e t h e concept of t h r e a t as w e l l as t h e p o s s i b i l i t y f o r g r a n t i n g j u r i s d i c t i o n t o t h e S t a t e of r e g i s t r y of an a i r c r a f t . The D e l e g a t e of Colombia explained t h a t h e r D e l e g a t i o n would s i g n t h e F i n a l Act b u t , due t o i n t e r n a l l e g i s l a t i o n , would n o t be a b l e t o s i g n t h e Protocol.
17.
18. The D e l e g a t e of P o r t u g a l h a i l e d t h e r e s u l t s of t h e Conference and added t h a t h i s D e l e g a t i o n , above a l l , would l i k e t o see each S t a t e p u t t h e new l e g a l document i n t o p r a c t i c e . O b e h a l f of h i s D e l e g a t i o n , he expressed n g r a t i t u d e - t o t h e P r e s i d e n t and t h e S e c r e t a r i a t , and s t a t e d t h a t he hoped t o s i g n t h e instrument t h e f o l l o w i n g day.
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19. The D e l e g a t e of I n d i a expressed h i s a p p r e c i a t i o n f o r t h e i n i t i a t i v e t a k e n by t h e Government of Canada d u r i n g t h e 26th S e s s i o n of t h e Assembly, an i n i t i a t i v e which had been Co-sponsored by I n d i a , among o t h e r s . H e explained t h a t h i s c o u n t r y was committed t o t h e a i m s and o b j e c t i v e s of t h e Chicago Convention and of I C A O , was p a r t y t o t h e Tokyo, The Hague and Montreal Conventions, and had enacted a p p r o p r i a t e domestic l e g i s l a t i o n in a d d i t i o n t o following t h e measures of Annex 1 7 . He expressed s a t i s f a c t i o n w i t h t h e outcome of t h e Conference, n o t i n g t h a t it was t h e r e s u l t of a s p i r i t of consensus and observing t h a t t h e t e x t of t h e P r o t o c o l had n o t changed s i g n i f i c a n t l y from t h e draft. H e i n d i c a t e d t h a t h e would s i g n t h e F i n a l Act t h e f o l l o w i n g day and t h a t I n d i a would g i v e c a r e f u l , s e r i o u s and e x p e d i t i o u s c o n s i d e r a t i o n t o s i g n i n g t h e Protocol. H e was p l e a s e d w i t h t h e unanimous a d o p t i o n of t h e accompanying r e s o l u t i o n sponsored by t h e D e l e g a t e of t h e Union of S o v i e t S o c i a l i s t Republics and, l i k e t h e D e l e g a t e of Kenya, hoped t h a t an i n c r e a s e d t e c h n i c a l and f i n a n c i a l a s s i s t a n c e would b e forthcoming t o S t a t e s t h a t had t h e w i l l b u t n o t t h e means t o implement s e c u r i t y measures a t a i r p o r t s . I n c o n c l u s i o n , he expressed a p p r e c i a t i o n f o r t h e work of t h e Chairman of t h e Conference, t h e F i r s t Vice-president and t o t h e o t h e r V i c e - p r e s i d e n t s , t h e Chairman of t h e D r a f t i n g Committee, t h e o f f i c i a l s of t h e Legal Bureau, in particular D r . M. Milde, t h e Executive S e c r e t a r y , as w e l l as t o t h e Government of Canada.
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DRAFT Ninth Plenary Meeting
20. The D e l e g a t e of t h e Republic of Korea p r a i s e d t h e Chairman a s w e l l a s t h e S e c r e t a r i a t , t h e S e c r e t a r y General, and D r . M. Milde and h i s c o l l e a g u e s f o r t h e i r c o n t r i b u t i o n s towards t h e s u c c e s s of t h e Conference and c o n g r a t u l a t e d Delegates on t h e i r s p i r i t of co-operation. He reminded D e l e g a t e s t h a t t h e adoption of t h e P r o t o c o l a l o n e was n o t enough t o s u p p r e s s t e r r o r i s t a c t s b u t t h a t t h e most e f f i c i e n t way t o do s o would be through t h e implementation of such i n s t r u m e n t s . He s t a t e d t h a t h i s c o u n t r y had f i r m l y r e s o l v e d t o do i t s utmost t o p r o t e c t c i v i l a v i a t i o n and he appealed t o a l l o t h e r S t a t e s t o make s i m i l a r e f f o r t s n o t o n l y f o r themselves b u t f o r t h e s a f e t y of t h e e n t i r e world. H e d e c l a r e d t h a t he would s i g n t h e P r o t o c o l and F i n a l Act and added e x p r e s s i o n s of g r a t i t u d e towards t h e Canadian Government, the Drafting Committee and t h e Legal Committee. 21. The D e l e g a t e of t h e F e d e r a l Republic of Germany expressed h i s a p p r e c i a t i o n and thanks t o t h e P r e s i d e n t of t h e Conference, t h e S e c r e t a r y General, t h e Executive S e c r e t a r y and t h e r e p r e s e n t a t i v e s of t h e S e c r e t a r i a t , as w e l l a s t o t h e Canadian Government f o r i n i t i a t i n g t h e Conference, t h e Delegation of t h e Kingdom of t h e Netherlands f o r i t s work on t h e d r a f t i n t h e Legal Committee, and t o t h e Chairman of t h e D r a f t i n g Committee. He saw t h e r e s u l t s of t h e Conference as broadening t h e scope of t h e e x i s t i n g system of c i v i l a v i a t i o n s e c u r i t y and as r e p r e s e n t i n g a c l e a r d e c i s i o n of t h e i n t e r n a t i o n a l community t o c o n t i n u e t o c o n t r i b u t e towards common e f f o r t s t o combat t e r r o r i s m . 22. The D e l e g a t e of Ghana expressed g e n e r a l s a t i s f a c t i o n with t h e outcome o f t h e Conference and confirmed t h a t h i s Delegation would be s i g n i n g t h e P r o t o c o l t h e following day. He remarked t h a t t h e mere s i g n i n g of t h e P r o t o c o l would n o t b e enough, however, t o f u l f i l l i t s o b j e c t i v e and hoped t h a t t h e s p i r i t of co-operation seen a t t h e Conference would c o n t i n u e t o c h a r a c t e r i z e S t a t e s e f f o r t s t o d e a l with unlawful i n t e r f e r e n c e . H e expressed disappointment i n t h a t a f i r m commitment towards providing a s s i s t a n c e t o developing S t a t e s f o r t h e e s t a b l i s h m e n t of s e c u r i t y f a c i l i t i e s had n o t been achieved a t t h i s Conference, b u t he was pleased t h a t t h e r e had been some u n d e r s t a n d i n g o f t h e p r o b l e m and hoped t h a t i t would b e g i v e n some consideration. H e concluded w i t h words of a p p r e c i a t i o n f o r t h e e x c e l l e n t manner i n which t h e Conference had been o r g a n i z e d , and expressed g r a t i t u d e t o t h e Canadian Government f o r i t s i n i t i a t i v e i n terms of b o t h t h e Conference and f o r providing a s s i s t a n c e t o needy c o u n t r i e s . 23. The Observer f o r t h e I n t e r n a t i o n a l F e d e r a t i o n of A i r l i n e P i l o t s A s s o c i a t i o n s , n o t i n g w i t h i n t e r e s t t h a t t h e t e x t of t h e d r a f t P r o t o c o l had been adopted with l i t t l e change, considered t h e new instrument t o b e a n e c e s s a r y a d d i t i o n t o t h e e x i s t i n g Conventions on a i r s a f e t y . H e hoped t h a t t h e new P r o t o c o l would b e q u i c k l y accepted and i n c o r p o r a t e d i n t o t h e n a t i o n a l l e g i s l a t i o n of a l l S t a t e s s i n c e laws must s t i l l be implemented i n o r d e r t o be u s e f u l and t h e p a s t had shown t h a t a v i a t i o n t e r r o r i s t s had, a t t i m e s , n o t o n l y escaped punishment b u t had had t h e i r a c t i o n s applauded. He voiced h i s a s s o c i a t i o n s wish t h a t t h e i n t e r n a t i o n a l a v i a t i o n community would f i n d ways t o ensure t h a t t h e p r i n c i p l e s embodied i n t h e a v i a t i o n s a f e t y Conventions were imp lement ed
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24. The D e l e g a t e of I s r a e l joined o t h e r S t a t e s i n c o n g r a t u l a t i n g t h e P r e s i d e n t , t h e D r a f t i n g Committee and t h e S e c r e t a r i a t , and d e c l a r e d t h a t h e r S t a t e a t t a c h e d g r e a t importance t o t h e work done a t t h e Conference, f i n d i n g t h e P r o t o c o l t o b e well-balanced and a p p r o p r i a t e . She d e c l a r e d t h a t t e r r o r i s m should n o t b e t o l e r a t e d by t h e i n t e r n a t i o n a l community, t o whom many of t h e p e r p e t r a t o r s were w e l l known, and t h a t S t a t e s should commit themselves n o t t o a s s i s t t e r r o r i s t groups i n any way. Immediate r a t i f i c a t i o n of t h e P r o t o c o l was t h e n e x t important s t e p i n t h e combat of t e r r o r i s m , followed by t h e a p p l i c a t i o n Her D e l e g a t i o n b e l i e v e d t h a t t h e r e e x i s t e d f u r t h e r of t h e new i n s t r u m e n t . s t e p s t o b e t a k e n by t h e i n t e r n a t i o n a l community i n t h i s r e g a r d , such as t h e banning of c i v i l a v i a t i o n s e r v i c e s t o c o u n t r i e s which d i d n o t a b i d e by t h e p r o v i s i o n s of t h e a p p l i c a b l e Conventions. She was p l e a s e d t o announce h e r D e l e g a t i o n ' s a u t h o r i z a t i o n t o s i g n b o t h t h e P r o t o c o l and t h e F i n a l Act and concluded by e x p r e s s i n g h e r b e l i e f i n i n t e r n a t i o n a l co-operation as one of t h e major t o o l s i n t h e combat a g a i n s t t e r r o r i s m .
25. The D e l e g a t e of Peru c o n g r a t u l a t e d t h e P r e s i d e n t and t h e S e c r e t a r i a t f o r t h e s u c c e s s f u l work c a r r i e d o u t a t t h e Conference. While he d i d n o t wish t o make any r e s e r v a t i o n s t o t h e P r o t o c o l , he b e l i e v e d it would have been more a p p r o p r i a t e t o d e l e t e t h e p h r a s e concerning t h o s e a c t s which were " l i k e l y t o c a u s e o r endanger" s i n c e t h e y involved a s u b j e c t i v e e v a l u a t i o n and would b e d i f f i c u l t t o prove unlawful. He f e l t t h a t t h e concept of a t t e m p t should have bis been included i n paragraph 1 - and t h a t t h e term " s e r i o u s " should have been d e l e t e d from A r t i c l e II s o a s n o t t o s p e c i f y t h e g r a v i t y of t h e a c t b u t simply i t s nature. He a l s o f e l t t h a t t h e P r o t o c o l should have included a c t s of v i o l e n c e which were committed t o a i r p o r t f a c i l i t i e s l o c a t e d o u t s i d e t h e premises of an a i r p o r t and s t r e s s e d t h a t , i n s p i t e of t h e e f f o r t s of s e v e r a l S t a t e s , t h i s had n o t been i n c l u d e d , although he b e l i e v e d t h a t t h e r e w a s p a s s i v e agreement t h a t such a c t s b e included.
26. The D e l e g a t e of t h e United Kingdom suggested t h a t t h e Conference might wish t o pay t r i b u t e t o t h e l a t e D r . Gerald F i t z g e r a l d , who had been c l o s e l y involved - w i t h t h e l e g a l work of I C A O f o r more t h a n 40 y e a r s . D r . F i t z g e r a l d had j o i n e d t h e S e c r e t a r i a t of PICA0 i n 1946, becoming a member of t h e I C A O S e c r e t a r i a t when I C A O w a s e s t a b l i s h e d , and s e r v i n g u n t i l 1974 when h e had r e t i r e d . During t h i s t i m e , he had p a r t i c i p a t e d a c t i v e l y i n t h e work of t h e Legal Committee which produced, among o t h e r t h i n g s , The Hague and Montreal Conventions, and he had worked a c t i v e l y w i t h some of t h e major f i g u r e s of t h e Legal Committee of t h e time. When D r . F i t z g e r a l d had r e t i r e d from t h e S e c r e t a r i a t as P r i n c i p a l Legal O f f i c e r , he had joined t h e Canadian Department of J u s t i c e , t h u s becoming a f r e q u e n t D e l e g a t e a t I C A O meetings and had been e l e c t e d Chairman of t h e Legal Commission of t h e 1983 I C A O Assembly. The D e l e g a t e of t h e United Kingdom added t h a t D r . F i t z g e r a l d had i n s p i r e d many s t u d e n t s of a i r law w h i l e t e a c h i n g a t McGill U n i v e r s i t y and had been a g r e a t humanitarian. H e had a l s o been an accomplished p i a n i s t , and as a c y c l i s t had become a f a m i l i a r s i g h t i n Ottawa. The D e l e g a t e of t h e United Kingdom t h e n suggested t h a t t h e condolences of t h o s e a t t e n d i n g t h e Conference b e conveyed t o M r s . F i t z g e r a l d on t h e p a s s i n g of D r . Gerald F i t z g e r a l d .
27. The Chairman expressed h i s s i n c e r e a p p r e c i a t i o n t o t h e D e l e g a t e of t h e United Kingdom f o r h i s t h o u g h t f u l s u g g e s t i o n and f e l t t h a t t h o s e p r e s e n t
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who had been s t u d e n t s of D r . F i t z g e r a l d would a g r e e t h a t t h e d e s c r i p t i o n made had been an a c c u r a t e one. A s t h e Conference appeared t o a c c e p t t h e s u g g e s t i o n , it was s o decided. 28. The D e l e g a t e of Canada thanked t h e D e l e g a t e of t h e United Kingdom and o t h e r members of t h e Conference f o r t h e t r i b u t e t o a well-known Canadian, saying t h a t h e could add l i t t l e t o t h e f i n e d e s c r i p t i o n by t h e D e l e g a t e of t h e United Kingdom, except t o s a y t h a t D r . F i t z g e r a l d had been a t e a c h e r , f r i e n d , and co-worker t o many. On b e h a l f of t h e Canadian D e l e g a t i o n , t h e D e l e g a t e of Canada s t a t e d t h a t he would be pleased t o t r a n s m i t t h e s e n t i m e n t s of t h o s e a t t h e Conference, i n c l u d i n g t h e S e c r e t a r i a t , t o H r s . F i t z g e r a l d . 29. The Executive S e c r e t a r y , D r . M . Milde o u t l i n e d t h e c o u r s e of e v e n t s planned f o r l a s t meeting of t h e Conference, d u r i n g which s i g n i n g of t h e P r o t o c o l and F i n a l Act were t o t a k e p l a c e . I n r e p l y t o a query by t h e D e l e g a t e of Mexico, t h e Executive S e c r e t a r y announced t h a t c o p i e s of t h e document would b e a v a i l a b l e t h e following morning f o r p e r u s a l by D e l e g a t e s and i n d i c a t e d t h a t i f any m i s p r i n t s were d i s c o v e r e d , t h e s e should be r e p o r t e d t o t h e P r e s i d e n t . 30. The S e c r e t a r y General r e f e r r i n g t o t h e new P r o t o c o l t h a t would o f f i c i a l l y come i n t o e x i s t e n c e t h e following day, likened it t o a new s t o n e i n t h e w a l l a g a i n s t unlawful a c t s a g a i n s t i n t e r n a t i o n a l c i v i l a v i a t i o n , and assured t h e Conference t h a t t h e e n t i r e S e c r e t a r i a t would do i t s utmost t o implement t h e new instrument. I n l i g h t of I C A O s ongoing f i n a n c i a l c r i s i s , t h e Conference would be s a t i s f i e d t o n o t e t h a t c o s t s had remained w e l l w i t h i n t h e budget e s t a b l i s h e d by t h e Council f o r t h e Conference. To t h e P r e s i d e n t of t h e Conference and t o a l l D e l e g a t i o n s , t h e S e c r e t a r y General expressed h i s s i n c e r e thanks. O behalf of t h e P r e s i d e n t of t h e Council, and a l l t h e members of t h e n S e c r e t a r i a t , t h e S e c r e t a r y General thanked D e l e g a t e s f o r t h e confidence t h e y had placed i n t h e S e c r e t a r i a t and t h e honour t h e y had paid i t i n doing s o , and assured t h e Conference t h a t t h e s e r v i c e r e q u i r e d and expected of I C A 0 by t h e i n t e r n a t i o n a l community i n t h e p r o t e c t i o n of i n t e r n a t i o n a l c i v i l a v i a t i o n would c o n t i n u e . The S e c r e t a r y General r e i t e r a t e d h i s g r a t i t u d e t o a l l D e l e g a t i o n s t o whom he wished a Bon Voyage t o t h e i r homelands. 31. The P r e s i d e n t i n d i c a t e d t h a t he would make a s t a t e m e n t t h e following day b u t wished t o t a k e t h e p r e s e n t o p p o r t u n i t y t o thank t h e S e c r e t a r y General and h i s c o l l e a g u e s , D r . M. Milde, D r . M. P o u r c e l e t , D r . E.W. F a l l e r and M r . G.M. Kakkar f o r t h e q u a l i t y of t h e work t h e y had done. S p e c i a l p r a i s e was extended a l s o t o t h e i n t e r p r e t e r s and t r a n s l a t o r s f o r t h e e x c e p t i o n a l q u a l i t y of t h e i r work. The P r e s i d e n t expressed g r a t i t u d e t o Delegates f o r t h e i r co-operation b o t h among themselves and w i t h him and remarked upon t h e i r p o s i t i v e a t t i t u d e towards problem-solving, d e c l a r i n g t h a t it had been a g r e a t p l e a s u r e t o work w i t h them. (The meeting adjourned a t 1240 h o u r s )
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DRAFT Tenth P l e n a r y Meeting
TENTH PLENARY MEETING (Wednesday, 2 4 February 1988, a t 1000 h o u r s )
President:
AGENDA ITEM CONFERENCE
12:
SIGNATURE O THE FINAL ACT AND F
OF THE PROTOCOL
OF
THE
1. The P r e s i d e n t s t a t e d t h a t t h i s w a s t h e Tenth and f i n a l P l e n a r y Meeting which was convened f o r t h e purpose of s i g n i n g t h e F i n a l Act and t h e P r o t o c o l of t h e Conference.
2. A f t e r summarizing t h e work which had been c a r r i e d o u t , t h e P r e s i d e n t o u t l i n e d t h e procedure f o r s i g n i n g t h e i n s t r u m e n t s . The F i n a l Act was t h e n signed on b e h a l f of t h e following 77 S t a t e s : Algeria, Argentina, Australia, Austria, Brazil, Bulgaria, the Chile, China, Byelorussian S o v i e t Socialist Republic , Canada, Colombia, Costa Rica, Cte d I v o i r e , Cuba, Czechoslovakia, Denmark, Ecuador , Egypt , E t h i o p i a , Finland , F r a n c e , t h e German Democratic Republic, t h e F e d e r a l Republic of Germany, Ghana, Guinea, Greece, Hungary, I c e l a n d , I n d i a , I n d o n e s i a , t h e I s l a m i c Republic of I r a n , I r a q , I r e l a n d , I s r a e l , I t a l y , Jamaica, Japan, J o r d a n , Kenya, Kuwait , Lebanon, L i b e r i a , Libyan Arab Jamahiriya, Luxembourg, Madagascar, Malawi, Malaysia, Malta, Mexico, t h e Kingdom of t h e Netherlands , New Zealand, Niger, N i g e r i a , Norway, . P a k i s t a n , Panama, Peru, Poland, P o r t u g a l , t h e Republic of Korea, Romania, Saudi A r a b i a , Senegal, Spain, Sweden, Switzerland , T u n i s i a , Turkey, t h e Ukrainian S o v i e t S o c i a l i s t Republic, t h e Union of S o v i e t S o c , i a l i s t Republics, t h e United Arab Emirates, t h e United Kingdom, t h e United Republic of Tanzania, t h e United S t a t e s of America, Venezuela, Yugoslavia and and t h e P r o t o c o l w a s signed on behalf of t h e following 46 S t a t e s :
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Zaire
Argent i n a , Brazil, Bulgaria, t h e Byelorussian S o v i e t S o c i a l i s t Republic , Canada , C h i l e , China , Czechoslovakia , Denmark , Egypt, E t h i o p i a , t h e German Democratic Republic , t h e F e d e r a l Republic of Germany, Ghana, Hungary, I c e l a n d , I n d o n e s i a , I s r a e l , I t a l y , Jamaica, Kuwait , Lebanon, L i b e r i a , Malawi, Malaysia, Mexico, Niger, Norway, P a k i s t a n , P e r u , Poland , P o r t u g a l , t h e Republic of Korea, Romania, Saudi A r a b i a , Senegal, Sweden, S w i t z e r l a n d , Turkey, t h e Ukrainian S o v i e t S o c i a l i s t Republic , t h e Union of S o v i e t S o c i a l i s t Republics , t h e United Arab Emirates, t h e United S t a t e s of America, Venezuela, Yugoslavia and Z a i r e .
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The P r e s i d e n t remarked on t h e uniqueness o f t h i s Conference, t h e f i r s t i n almost t e n y e a r s . The c e l e r i t y w i t h which t h e p r e p a r a t o r y work had been c a r r i e d o u t as w e l l as i t s q u a l i t y enabled t h e Conference t o produce r e s u l t s quickly. I n p a r t i c u l a r h e expressed g r a t i t u d e t o M r . Rodrick Van Dam of t h e Kingdom of t h e Netherlands, s p e c i a l r a p p o r t e u r of t h e ICAO Legal Committee, f o r h i s e x c e l l e n t p i o n e e r i n g work i n developing t h e f i r s t d r a f t of t h e P r o t o c o l , t o Mrs. I r e n e Howie of t h e United S t a t e s of America, i n h e r c a p a c i t y as Chairman of t h e S p e c i a l Sub-committee of t h e Legal Committee and t o Mr. A l b e r t o Sciolla-Lagrange, Chairman of t h e Legal Committee. The purpose of t h e Conference was t o e s t a b l i s h a new i n t e r n a t i o n a l regime t o s u p p r e s s unlawful a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n and t o e n s u r e t h a t t h e p e r p e t r a t o r s of such a c t s would b e The Conference, i n s i g n i n g t h e F i n a l Act and punished wherever t h e y were. complementary P r o t o c o l , had accomplished t h i s g o a l . T h i s new P r o t o c o l would i n c r e a s e i n t e r n a t i o n a l co-operation t o prevent and s u p p r e s s s u c h a c t s and t o discourage p o t e n t i a l p e r p e t r a t o r s .
3.
4.
5. S e v e r a l f a c t o r s had c o n t r i b u t e d t o t h e success of t h e Conference. P a r t i c i p a t i n g S t a t e s were convinced of t h e n e c e s s i t y of reaching a balanced agreement; t h e y had put a s i d e t h e i r n a t i o n a l p r e f e r e n c e s i n f a v o u r of f i n d i n g a t e x t t h a t would encourage t h e widest p a r t i c i p a t i o n of S t a t e s . The importance of t h e work was underscored by t h e number of p a r t i c i p a t i n g S t a t e s and by t h e f i r m s u p p o r t of t h e UN General Assembly. The s i n g l e most important f a c t o r t h a t had enabled t h e Conference t o adopt by consensus a new i n t e r n a t i o n a l instrument w a s t h a t S t a t e s , u n i t e d i n t h e i r condemnation of t e r r o r i s m , held t h e c o n v i c t i o n t h a t unlawful a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n could n o t be t o l e r a t e d wherever and by whomever committed. The f a c t t h a t t h e P r o t o c o l was t h e f i r s t instrument concerning t h e p r o t e c t i o n of i n t e r n a t i o n a l c i v i l a v i a t i o n t o be adopted without a v o t e w a s h i g h l i g h t e d .
6. The a d o p t i o n of t h e P r o t o c o l by consensus, t h e s i g n i n g of t h e P r o t o c o l by 46 S t a t e s on t h e f i r s t day of s i g n a t u r e ( w i t h many d e c l a r a t i o n s of i n t e n t t o s i g n a f t e r t h e Conference) and t h e s i g n i n g of t h e F i n a l Act by 7 7 S t a t e s gave r i s e t o t h e b e l i e f t h a t t h e P r o t o c o l would e n j o y t h e same l e v e l of p a r t i c i p a t i o n as t h e Montreal Convention. A s S t a t e s had expressed d u r i n g t h e Conference t h e i r d e s i r e t o s e e t h e P r o t o c o l e n t e r i n t o f o r c e i n t h e i r r e s p e c t i v e c o u n t r i e s as q u i c k l y as p o s s i b l e , t h e P r e s i d e n t s t a t e d t h a t it was now S t a t e s r e s p o n s i b i l i t y t o become p a r t y t o t h e P r o t o c o l and t o c a r r y o u t t h e i r o b l i g a t i o n s under i t .
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7. The P r e s i d e n t s t r e s s e d t h a t t h e a d o p t i o n of i n t e r n a t i o n a l \ i n s t r u m e n t s d i d n o t i t s e l f e n s u r e t h e s a f e t y of a i r p o r t s . H e r e c a l l e d t h e Resolution i n t h e F i n a l Act which urged S t a t e s t o t a k e a l l p o s s i b l e s t e p s t o s u p p r e s s a c t s of violence a t a i r p o r t s serving i n t e r n a t i o n a l c i v i l a v i a t i o n , including preventive The R e s o l u t i o n measures recommended i n Annex 1 7 of t h e Chicago Convention. a l s o r e q u e s t e d t h e I C A O Council t o c o n t i n u e g i v i n g h i g h e s t p r i o r i t y t o t h e adoption of e f f e c t i v e measures t o prevent u n l a w f u l a c t s and c a l l e d upon t h e i n t e r n a t i o n a l community t o c o n s i d e r i n c r e a s i n g t e c h n i c a l , f i n a n c i a l and m a t e r i a l a s s i s t a n c e t o S t a t e s t o enhance s e c u r i t y a t t h e i r a i r p o r t s .
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8. H e expressed h i s g r a t i t u d e t o t h e f o u r Vice-presidents of t h e Conference f o r t h e i r e f f o r t s , s k i l l and a s s i s t a n c e as w e l l as t o t h e Chairmen H e expressed p a r t i c u l a r thanks t o of t h e D r a f t i n g and C r e d e n t i a l s Committees. t h e P r e s i d e n t of t h e I C A O Council and t h e S e c r e t a r y General f o r t h e i r i n v a l u a b l e a s s i s t a n c e and support and t o D r . Milde, t h e Executive S e c r e t a r y and h i s c o l l e a g u e s , Messrs. P o u r c e l e t , F a l l e r and Kakkar. S p e c i a l thanks were due t o t h e i n t e r p r e t e r s , t r a n s l a t o r s and t e c h n i c i a n s and o t h e r members of t h e I C A O S e c r e t ar i a t f o r t h e i r prof es s iona 1ism.
I t was h i s hope t h a t t h e s u c c e s s of t h e Conference would emphasize t h e importance of ICAO?s work and t h a t S t a t e s would e n s u r e t h a t ICAO?s f i n a n c i a l d i f f i c u l t i e s were overcome.
9.
10.
The Meeting was adjourned and t h e Conference c l o s e d .
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P A R T II I
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DOC 9502-LW86
I C A 0
Internationdl
Civil
A v i d t i o n
Orgdnizdtion
LEGAL COMMITTEE 26TH SESSION

Montreal, 28 April
- 13 May 1987
Report
Published by authority of the Secretary General
MONTREAL
CANADA
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- 143 O r g a n i z a t i o n o f t h e Meeting
LEGAL COMMITTEE
26TH SESSION
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REPORT ON THE WORK O THE LEGAL COMMITTEE F D U R I N G ITS 26TH SESSION M o n t r e a l , 28 A p r i l
1 3 May 1987
P l a c e and D u r a t i o n The 2 6 t h S e s s i o n o f t h e L e g a l Committee was h e l d a t M o n t r e a l from 1. 28 A p r i l t o 13 May 1987. D r . A . S c i o l l a - L a g r a n g e ( I t a l y ) , Chairman o f t h e L e g a l Committee, p r e s i d e d o v e r t h e s e s s i o n . D r . G.H. Kaunda ( U n i t e d R e p u b l i c o f T a n z a n i a ) , F i r s t Vice-chairman o f t h e Committee, c h a i r e d t h e l a s t two meetings
Opening A d d r e s s 2. The P r e s i d e n t o f t h e C o u n c i l , D r . Assad K o t a i t e , a d d r e s s e d t h e opening of t h e s e s s i o n and drew t o t h e a t t e n t i o n o f t h e Committee t h e i m p o r t a n t e v e n t s i n t h e l e g a l work of I C A O s i n c e t h e l a s t s e s s i o n o f t h e Committee i n 1983. H e emphasized i n p a r t i c u l a r t h e d e c i s i o n of t h e 2 6 t h S e s s i o n o f t h e I C A O Assembly ( R e s o l u t i o n A26-4) a c c o r d i n g t o which t h e f i r s t p r i o r i t y i n t h e l e g a l work o f t h e O r g a n i z a t i o n and t h e f i r s t mandate o f t h e c u r r e n t s e s s i o n o f t h e L e g a l Committee would b e t h e p r e p a r a t i o n o f a d r a f t i n s t r u m e n t f o r t h e s u p p r e s s i o n of u n l a w f u l a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l aviation. The P r e s i d e n t o f t h e C o u n c i l a l s o r e c a l l e d t h a t t h e I C A O L e g a l 2.1 Committee was marking t h e f o r t i e t h a n n i v e r s a r y o f i t s c r e a t i o n and o f i t s f i r s t s e s s i o n . He summarized t h e a c h i e v e m e n t s accomplished i n t h e f i e l d o f t h e l e g a l work of t h e O r g a n i z a t i o n which enhanced c o n s i d e r a b l y t h e development and c o d i f i c a t i o n o f i n t e r n a t i o n a l a i r law. He a l s o welcomed a s t h e g u e s t of honour a t t h e o p e n i n g of t h e S e s s i o n D r . Eugne P p i n , t h e f i r s t D i r e c t o r o f t h e I C A O Legal Bureau and t h e f i r s t S e c r e t a r y of t h e L e g a l Committee. D r . P p i n would be soon c e l e b r a t i n g h i s one-hundredth t i r t h d a y . D r . P p i n t h e n s h a r e d w i t h t h e Committee h i s r e m i n i s c e n c e s o f t h e d r a f t i n g o f t h e f i r s t c o n s t i t u t i o n of t h e Legal Committee i n 1947. The Committee p a i d t r i b u t e t o D r . P p i n s c o n t r i b u t i o n t o t h e development o f i n t e r n a t i o n a l a i r law and e x p r e s s e d i t s b e s t w i s h e s on t h e f o r t h c o m i n g one-hundredth b i r t h d a y o f D r . P p i n . Ag enda and Work i n g A r r a n g emen t s
T h e f i n a l agenda o f t h e s e s s i o n adopted a t t h e f i r s t m e e t i n g i s 3. p r e s e n t e d i n Attachment A h e r e t o .
4.
The documents and working p a p e r s c o n s i d e r e d by t h e Committee a r e l i s t e d by agenda items i n Attachment B t o t h i s R e p o r t .

Not for Resale
- 144 O r g a n i z a t i o n of t h e Meeting The a c t i o n t a k e n by t h e Committee i n r e s p e c t o f e a c h i t e m i s r e p o r t e d 5. on s e p a r a t e l y i n t h e R e p o r t . The m a t e r i a l i s a r r a n g e d a c c o r d i n g t o t h e n u m e r i c a l s e q u e n c e o f t h e agenda i t e m s c o n s i d e r e d by t h e Committee.
Meet i n e s
6. session.
The Committee h e l d 22 m e e t i n g s ; a l l m e e t i n g s were h e l d i n open
7. The S e c r e t a r y o f t h e Committee was D r . M. M i l d e , D i r e c t o r o f t h e L e g a l Bureau of I C A O , t h e Deputy S e c r e t a r y was D r . M. P o u r c e l e t , P r i n c i p a l L e g a l O f f i c e r , and A s s i s t a n t S e c r e t a r i e s were D r . E.W. F a l l e r , S e n i o r L e g a l O f f i c e r , and Mr. G . M . Kakkar, L e g a l O f f i c e r of I C A O ; o t h e r o f f i c i a l s o f t h e O r g a n i z a t i o n a l s o p r o v i d e d s e r v i c e s f o r t h e Committee.
R e p r e s e n t a t i o n of S t a t e s and I n t e r n a t i o n a l O r g a n i z a t i o n s
8. S i x t y - n i n e C o n t r a c t i n g S t a t e s , 1 n o n - C o n t r a c t i n g S t a t e and 4 i n t e r n a t i o n a l o r g a n i z a t i o n s were r e p r e s e n t e d a t t h i s s e s s i o n o f t h e L e g a l Committee. The names of t h e r e p r e s e n t a t i v e s and o b s e r v e r s a p p e a r i n Attachment C t o t h i s R e p o r t .

Records o f P r o c e e d i n g s 9. The Committee d e c i d e d t h a t i n a p p l i c a t i o n of R u l e 45 of i t s R u l e s o f P r o c e d u r e , t h e m i n u t e s o f t h e 2 6 t h S e s s i o n need n o t b e p r e p a r e d ; t h i s d e c i s i o n was t a k e n t o respond i n a c o n s t r u c t i v e manner t o t h e c u r r e n t f i n a n c i a l s i t u a t i o n of t h e O r g a n i z a t i o n .
a
E x p r e s s i o n of sympathy
10. On 11 May 1987, t h e Committee o b s e r v e d o n e m i n u t e o f s i l e n c e t o honour t h e memory o f t h e 183 v i c t i m s o f a m a j o r a i r c r a f t a c c i d e n t which o c c u r t e d on 9 May 1987 i n Warsaw. The Committee e x p r e s s e d i t s sympathy t o t h e Delegation of Poland.
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Not for Resale
- 145Report on Agenda Item 2
Agenda Item 2:
Report of t h e S e c r e t a r i a t
The Committee noted LC/26-WP/2 p r e s e n t e d by t h e S e c r e t a r i a t . The purpose o f t h a t paper was t o draw a t t e n t i o n of t h e Committee t o t h e e v e n t s and a c t i v i t i e s i n t h e l e g a l f i e l d of ICAO s i n c e t h e 25th S e s s i o n of t h e Committee held i n 1983. The Committee noted t h a t a l t h o u g h t h e s e s s i o n of t h e Legal Committee 2: 2 was not held f o r f o u r c o n s e c u t i v e y e a r s , t h e work on t h e items on t h e work programme of t h e O r g a n i z a t i o n i n t h e l e g a l f i e l d was c a r r i e d o u t e f f i c i e n t l y i n t h e form of S e c r e t a r i a t s t u d i e s on t h e UN Convention on t h e Law of t h e Sea and on t h e l i a b i l i t y of a i r t r a f f i c c o n t r o l a g e n c i e s , as w e l l a s s u b j e c t s r e l a t i n g t o i n t e r c e p t i o n of c i v i l a i r c r a f t and on t h e model c l a u s e on a v i a t i o n s e c u r i t y f o r i n s e r t i o n i n t o b i l a t e r a l agreements on a i r s e r v i c e s .
2: 1
2:3 T h e Committee a l s o noted t h e a c t i o n s taken by t h e Chairman of t h e Legal Committee s i n c e t h e l a s t s e s s i o n of t h e Committee, i n p a r t i c u l a r t h e convening of two s p e c i a l sub-committees (one on t h e p r e p a r a t i o n of a d r a f t instrument on t h e i n t e r c e p t i o n of c i v i l a i r c r a f t and a n o t h e r on t h e development of an instrument f o r t h e s u p p r e s s i o n of unlawful a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n ) . The Chairman of t h e Legal Committee, under t h e Rules of Procedure of t h e Committee, a l s o appointed t h r e e r a p p o r t e u r s ; Mr. A . Kean (United Kingdom) prepared a r e p o r t on t h e s u b j e c t of t h e UN Convention on t h e Law of t h e Sea t a k i n g i n t o account t h e s t u d y prepared by t h e S e c r e t a r i a t , t h e comments of t h e Council t h e r e o n as w e l l a s t h e comments presented by S t a t e s and i n t e r n a t i o n a l o r g a n i z a t i o n s . P r o f e s s o r H. P e r u c c h i ( A r g e n t i n a ) prepared a r e p o r t on t h e s u b j e c t of t h e l i a b i l i t y of a i r t r a f f i c c o n t r o l agencies t a k i n g i n t o account t h e study prepared by t h e S e c r e t a r i a t , t h e comments of t h e Council t h e r e o n a s w e l l a s t h e comments p r e s e n t e d by S t a t e s and i n t e r n a t i o n a l o r g a n i z a t i o n s . D r . R.D. van Dam (Kingdom of t h e N e t h e r l a n d s ) prepared a r e p o r t on t h e development of an instrument f o r t h e s u p p r e s s i o n of unlawful a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n t a k i n g i n t o account t h e p r o p o s a l s p r e s e n t e d t o t h e 26th S e s s i o n of t h e ICAO Assembly, t h e d i s c u s s i o n s a t t h a t Assembly and Assembly R e s o l u t i o n X 2 6 - 4 ; t h e r e p o r t prepared by D r . van Dam served a s t h e b a s i s f o r t h e c o n s i d e r a t i o n s of t h e s p e c i a l sub-committee which met a t Montreal from 20 t o 30 January 1987.
T h e Committee noted t h e work done s i n c e t h e 25th S e s s i o n of t h e Legal 2 :4 Cormnittee and expressed i t s a p p r e c i a t i o n t o t h e Chairman of t h e Committee.
Not for Resale
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- 147 R e p o r t o n Agenda Item 4
Agenda Item 4:
Development o f a n I n s t r u m e n t f o r t h e S u p p r e s s i o n o f Unlawful Acts o f Violence a t A i r p o r t s Serving I n t e r n a t i o n a l C i v i l Aviation
A.
H i s t o r i c a l background
4:l A t t h e 2 6 t h S e s s i o n of t h e Assembly i n September-October 1986, t h e D e l e g a t i o n o f Canada p r e s e n t e d t o t h e E x e c u t i v e Committee p a p e r A26-WP141 on b e h a l f o f many Co-sponsors. This paper expressed concern a t a c t s of violence a t i n t e r n a t i o n a l a i r p o r t s i n r e c e n t y e a r s i n v o l v i n g i n d i s c r i m i n a t e k i l l i n g of i n n o c e n t t r a v e l l e r s and recommended t h a t t h e Assembly i n c l u d e i n t h e Work Programme o f . t h e L e g a l Committee, w i t h t h e h i g h e s t p r i o r i t y , t h e q u e s t i o n o f a p o s s i b l e i n s t r u m e n t on t h e s u p p r e s s i o n of unlawful a c t s o f v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l a i r t r a n s p o r t a t i o n . The E x e c u t i v e Committee r e f e r r e d t h e p a p e r A26-WP141 t o t h e L e g a l Commission f o r c o n s i d e r a t i o n . I n t h e L e g a l Commission, t h e p r o p o s a l p r e s e n t e d i n A26-WP141 was s u p p o r t e d by a l l D e l e g a t i o n s and it was a g r e e d t h a t t h e h i g h e s t d e g r e e o f p r i o r i t y i n t h e Work Programme o f t h e L e g a l Committee s h o u l d b e a c c o r d e d t o t h e i t e m : "Development o f an I n s t r u m e n t f o r t h e S u p p r e s s i o n o f Unlawful A c t s of V i o l e n c e a t A i r p o r t s Serving I n t e r n a t i o n a l C i v i l Aviation". The recommendation o f t h e L e g a l Commission w i t h r e s p e c t t o t h i s i t e m was a l s o t h e s u b j e c t o f R e s o l u t i o n A26-4 adopted unanimously by t h e Assembly which i n i t s l a s t r e s o l v i n g c l a u s e "CALLS UPON t h e C o u n c i l t o convene a s e a r l y as p o s s i b l e i n t h e f i r s t h a l f o f 1987 a m e e t i n g of t h e L e g a l Committee t o p r e p a r e a d r a f t i n s t r u m e n t f o r t h e s u p p r e s s i o n o f u n l a w f u l a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n w i t h a view t o a d o p t i o n of t h e i n s t r u m e n t a t a d i p l o m a t i c c o n f e r e n c e a s soon as p r a c t i c a b l e , p r e f e r a b l y b e f o r e t h e end o f t h e 1987 c a l e n d a r y e a r , i n a c c o r d a n c e w i t h t h e I C A O p r o c e d u r e s s e t f o r t h i n Assembly Reso l u t i o n A7-6 'l.
A c t i o n bv t h e C o u n c i l
4:2 A t t h e t h i r d m e e t i n g o f i t s 1 1 9 t h S e s s i o n , o n 18 November 1986, t h e C o u n c i l o f I C A O approved t h e General. Work Programme o f t h e L e g a l Committee and d e c i d e d t o convene t h e s p e c i a l Sub-committee o f t h e L e g a l Committee a t M o n t r e a l from 20 t o 30 J a n u a r y 1987, t o implement R e s o l u t i o n A26-4 which i n t e r a l i a "CALLS UPON t h e C o u n c i l t o t a k e t h e n e c e s s a r y measures f o r t h e p r e p a r a t i o n of a d r a f t i n s t r u m e n t f o r t h e s u p p r e s s i o n o f u n l a w f u l a c t s of v i o l e n c e a t a i r p o r t s serving i n t e r n a t i o n a l c i v i l a v i a t i o n or t h e consideration of t h e Legal Committee". During t h e same m e e t i n g , t h e C o u n c i l d e c i d e d t o convene t h e 2 6 t h S e s s i o n o f t h e L e g a l Committee from 28 A p r i l t o 13 May 1987.
S p e c i a l Sub-committee o f t h e L e g a l Committee The s p e c i a l Cub-Committee o f t h e L e g a l Committee was e s t a b l i s h e d b y 4:3 t h e Chairman o f t h e L e g a l Committee u n d e r Rule 1 2 ( b ) o f t h e R u l e s o f P r o c e d u r e o f t h e L e g a l Committee; f u r t h e r m o r e , i n a c c o r d a n c e w i t h Rule 17 of t h e R u l e s o f P r o c e d u r e , t h e Chairman a p p o i n t e d a R a p p o r t e u r ( D r . R.D. van D a m , Kingdom o f The N e t h e r l a n d s ) .
Not for Resale
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- 148 R e p o r t on Agenda Item 4
The t e r m s of r e f e r e n c e o f t h e s p e c i a l Sub-committee a s d e f i n e d by t h e 4:4 C o u n c i l were a s f o l l o w s : " t o s t u d y , i n t h e l i g h t o f Assembly d i s c u s s i o n s and d e c i s i o n s and i n t h e l i g h t o f t h e R a p p o r t e u r ' s r e p o r t , t h e s u b j e c t o f a d r a f t instrument f o r t h e s u p p r e s s i o n o f unlawful a c t s o f v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n and t o p r e p a r e a d r a f t i n s t r u m e n t f o r C o n s i d e r a t i o n by t h e 2 6 t h S e s s i o n o f t h e Legal Committee". The Sub-Committee c o n s i d e r e d t h e s u b j e c t on t h e b a s i s o f a n 4: 5 a n a l y t i c a l s t u d y and a d r a f t t e x t p r e p a r e d by t h e R a p p o r t e u r . A s a r e s u l t o f i t s d e l i b e r a t i o n s , t h e Sub-Committee p r e p a r e d a d r a f t t e x t f o r c o n s i d e r a t i o n by t h e L e g a l Committee. With r e s p e c t t o t h e form o f t h e new i n s t r u m e n t , t h e overwhelming m a j o r i t y a g r e e d t h a t i t s h o u l d b e a p r o t o c o l s u p p l e m e n t i n g t h e Montreal Convention o f 1971 and e n l a r g i n g i t s s c o p e by a d d i n g t o i t s d e f i n i t i o n s o f t h e "offence". The Sub-committee a g r e e d t h a t i t w i l l b e a l s o necessary t o ensure t h a t substantive provisions regarding j u r i s d i c t i o n , p r o s e c u t i o n and e x t r a d i t i o n would a p p l y t o t h e s e a d d i t i o n a l o f f e n c e s . The Sub-Committee concluded t h a t i n view o f t h e unanimously e x p r e s s e d p o l i t i c a l w i l l of S t a t e s i n R e s o l u t i o n A26-4, i n t h e l i g h t o f t h e f u l l s u p p o r t g i v e n by t h e I C A 0 C o u n c i l t o t h i s i n i t i a t i v e and i n t h e l i g h t o f t h e p r o g r e s s o f t h e d r a f t i n g e f f o r t a c h i e v e d by t h e Sub-Committee, t h e s u b j e c t was r i p e f o r c o n s i d e r a t i o n by t h e 2 6 t h S e s s i o n o f t h e L e g a l Committee. A t i t s -120th S e s s i o n , on 23 F e b r u a r y 1 9 8 7 , t h e C o u n c i l n o t e d t h e Report of t h e s p e c i a l Sub-Committee.
B.
Report of t h e s p e c i a l Sub-Committee
4:6 Ms. I.E. Howie ( U n i t e d S t a t e s o f America) i n h e r c a p a c i t y a s Chairman o f t h e s p e c i a l Sub-committee i n t r o d u c e d t h e Report of t h e Sub-Committee (LC/SC-VIA). She r e c a l l e d R e s o l u t i o n A26-4 a d o p t e d by t h e 2 6 t h S e s s i o n o f t h e Assembly which g u i d e d t h e work o f t h e Sub-committee. The Report o f t h e Rapporteur ( D r . R.D. van Dam, Kingdom of t h e N e t h e r l a n d s ) c o n s t i t u t e d t h e b a s i s f o r t h e d i s c u s s i o n s o f t h e Sub-Committee which a d d r e s s e d t h e f o l l o w i n g i s s u e s : form of t h e new i n s t r u m e n t , d e f i n i t i o n o f a i r p o r t and o f c r i t i c a l a r e a s o f t h e a i r p o r t , d e f i n i t i o n of o f f e n c e s .
4:7 The Chairman o f t h e Sub-Committee i n d i c a t e d t h a t t h e overwhelming m a j o r i t y o f t h e Sub-Committee was i n f a v o u r o f a P r o t o c o l a d d i t i o n a l t o t h e Montreal Convention o f 1971. She p o i n t e d o u t t h a t t h e Committee r e a c h e d t h e c o n c l u s i o n t h a t a d e f i n i t i o n o f i n t e r n a t i o n a l a i r p o r t was n o t n e c e s s a r y s i n c e t h e r e w a s no s u i t a b l e d e f i n i t i o n i n t h e Chicago Convention and t h a t t h e c o n c e p t o f " a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n " r e t a i n e d by t h e Sub-committee was f l e x i b l e enough and t h a t t h e q u e s t i o n w h e t h e r a n a i r p o r t s e r v e d i n t e r n a t i o n a l c i v i l a v i a t i o n was a q u e s t i o n o f f a c t l e f t t o t h e d i s c r e t i o n of t h e S t a t e . With r e s p e c t t o t h e d e f i n i t i o n o f c f f e n c e s , t h e Chairman o f t h e Sub-committee p o i n t e d o u t t h a t t h e Sub-committee had e x c l u d e d from t h e s c o p e o f a p p l i c a t i o n of t h e f u t u r e i n s t r u m e n t o f f e n c e s which had no b e a r i n g on t h e s a f e t y o f i n t e r n a t i o n a l c i v i l a v i a t i o n . She i n d i c a t e d t h a t t h e m a j o r i t y of t h e Sub-Committee d i d n o t f a v o u r t h e i n c l u s i o n o f t a k i n g o f h o s t a g e s and k i d n a p p i n g and communication of f a l s e i n f o r m a t i o n among t h e o f f e n c e s t o b e d e a l t w i t h i n t h e new i n s t r u m e n t . R e f e r r i n g t o t h e d r a f t t e x t 1 - p r e p a r e d by t h e bis Sub-Committee, s h e p o i n t e d o u t t h a t few i s s u e s , i n s q u a r e b r a c k e t s , had b e e n l e f t f o r c o n s i d e r a t i o n by t h e L e g a l Committee.
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- 149 R e p o r t on Agenda I t e m 4
C.
General d i s c u s s i o n
4:8 Twenty-eight D e l e g a t i o n s and t h r e e O b s e r v e r s p a r t i c i p a t e d i n t h e g e n e r a l d i s c u s s i o n and t h e f o l l o w i n g views were e x p r e s s e d by o n e o r more Delegations:
a l l D e l e g a t i o n s p r a i s e d t h e R a p p o r t e u r ' s r e p o r t and commended t h e work o f t h e Sub-Committee which was c o n s i d e r e d a n e x c e l l e n t b a s i s f o r t h e work o f t h e Committee; w i t h r e s p e c t t o t h e f o r m o f t h e i n s t r u m e n t , many D e l e g a t i o n s b e l i e v e d t h a t t h e most e f f e c t i v e and d e s i r a b l e s o l u t i o n would b e a P r o t o c o l a d d i t i o n a l t o t h e M o n t r e a l C o n v e n t i o n o f 1971 a l o n g t h e l i n e s recommended by t h e Such a P r o t o c o l would c r e a t e a l i n k w i t h t h e s p e c i a l Sub-committee. Montreal Convention which had r e c e i v e d a v e r y wide a c c e p t a n c e by S t a t e s and would f i l l t h e p r e s e n t g a p which e x i s t e d i n t h e a b s e n c e o f s p e c i f i c i n t e r n a t i o n a l p r o v i s i o n s r e g a r d i n g a c t s of v i o l e n c e a t a i r p o r t s . It w a s s t a t e d t h a t a P r o t o c o l , p r i n c i p l e s o f which would b e c l o s e l y r e l a t e d t o t h e M o n t r e a l C o n v e n t i o n , would c e r t a i n l y a t t r a c t r a t i f i c a t i o n s by t h e v a s t One D e l e g a t i o n m a j o r i t y o f S t a t e s a l r e a d y p a r t i e s t o t h e 1971 Convention. p o i n t e d o u t t h a t S t a t e s n o t y e t p a r t i e s t o t h e M o n t r e a l Convention m i g h t n o t b e w i l l i n g t o a d h e r e t o t h e P r o t o c o l and i n t h a t r e s p e c t i t m i g h t appear u s e f u l t o adopt a p r o v i s i o n i n t h e f i n a l c l a u s e s of t h e P r o t o c o l a c c o r d i n g t o which S t a t e s c o u l d a d h e r e t o t h e P r o t o c o l w i t h o u t becoming p a r t i e s t o t h e amended C o n v e n t i o n ; t h r e e D e l e g a t i o n s and o n e O b s e r v e r were o f t h e v i e w t h a t t h e new i n s t r u m e n t s h o u l d t a k e t h e form o f a s e p a r a t e Convention s i n c e t h e o f f e n c e s e n v i s a g e d i n t h e new i n s t r u m e n t were d i f f e r e n t i n n a t u r e from t h o s e d e f i n e d i n t h e M o n t r e a l Convention. I t was s t a t e d t h a t t h e o f f e n c e s t o b e c o v e r e d by t h e net; i n s t r u m e n t might c a l l f o r more s t r i n g e n t r u l e s r e g a r d i n g p r o s e c u t i o n and e x t r a d i t i o n ; one D e l e g a t i o n o b s e r v e d t h a t t h e work u n d e r t a k e n b y t h e Committee, whatever t h e form o f t h e i n s t r u m e n t , c o u l d s e r v e a s g u i d a n c e m a t e r i a l which would e n a b l e S t a t e s t o adopt p r o v i s i o n s i n t h e i r d o m e s t i c p e n a l l e g i s l a t i o n o r i n t h e i r b i l a t e r a l agreements r e l a t i n g t o t h e o f f e n c e s e n v i s a g e d i n t h e new i n s t r u m e n t ; several Delegations, while not objecting i n p r i n c i p l e t o t h e f u t u r e i n s t r u m e n t b e i n g p r e p a r e d i n t h e form o f a P r o t o c o l t o t h e M o n t r e a l C o n v e n t i o n , c o n s i d e r e d i t p r e f e r a b l e i f t h e new i n s t r u m e n t were o f a n independent n a t u r e , and p a r t i c i p a t i o n i n i t were n o t c o n d i t i o n a l upon b e i n g a P a r t y t o t h e M o n t r e a l Convention. I t was e s s e n t i a l t o t a k e ' i n t o account t h e f a c t t h a t a n i n s t r u m e n t of a u n i v e r s a l n a t u r e was b e i n g developed i n which, i n a c c o r d a n c e w i t h g e n e r a l l y a c c e p t e d norms o f i n t e r n a t i o n a l t r e a t y law, any S t a t e could p a r t i c i p a t e ; s e v e r a l D e l e g a t i o n s proposed t h a t i n c o n s i d e r i n g t h e q u e s t i o n o f e x t r a d i t i o n o f p e o p l e who have committed u n l a w f u l a c t s o f v i o l e n c e a t a i r p o r t s p r e f e r e n c e s h o u l d b e g i v e n t o t h e S t a t e i n which t h e a i r p o r t i s located;
Not for Resale
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s e v e r a l D e l e g a t i o n s spoke i n f a v o u r o f i n c l u d i n g i n t h e new i n s t r u m e n t p r o v i s i o n s c o n t a i n i n g more s p e c i f i c o b l i g a t i o n s f o r S t a t e s i n p r e v e n t i n g a c t s of u n l a w f u l i n t e r f e r e n c e a t a i r p o r t s ; s e v e r a l D e l e g a t i o n s b e l i e v e d t h a t t h e o f f e n c e t o b e d e f i n e d i n t h e new i n s t r u m e n t s h o u l d b e s e r i o u s i n n a t u r e and have a d i r e c t e f f e c t on t h e s a f e o p e r a t i o n o f t h e a i r p o r t and on t h e s a f e t y o f c i v i l a v i a t i o n ; two D e l e g a t i o n s s t a t e d t h a t t h e new i n s t r u m e n t s h o u l d c o n t e m p l a t e e s s e n t i a l l y acts of v i o l e n c e a g a i n s t p e r s o n s ; it could a l s o b e a p p l i c a b l e t o t e r r o r i s t a t t a c k s on p r o p e r t y when t h e means u s e d were l i k e l y t o j e o p a r d i z e t h e s a f e t y of p e r s o n s . On t h e o t h e r hand, a c t s o f a m i n o r n a t u r e d i d n o t j u s t i f y t h e e s t a b l i s h m e n t of a u n i v e r s a l competence and s h o u l d c o n t i n u e t o f a l l w i t h i n t h e competence o f t h e n a t i o n a l p e n a l laws of t h e S t a t e of o c c u r r e n c e ; some D e l e g a t i o n s s t a t e d t h a t t h e c o n c e p t of t h r e a t s h o u l d n o t b e r e t a i n e d w h i l e two D e l e g a t i o n s were o f t h e view t h a t t h i s c o n c e p t was o f g r e a t importance and s h o u l d b e m a i n t a i n e d s i n c e t h r e a t might c r e a t e c h a o s a t a n a i r p o r t interfering with t h e s a f e operation of t h e a i r p o r t ;
it was s t a t e d t h a t t h e q u e s t i o n of i n t e n t t o c a r r y o u t a n a c t o f v i o l e n c e or t h e a t t e m p t t o p e r f o r m s u c h a c t d e s e r v e d c a r e f u l c o n s i d e r a t i o n by t h e Committee and r e q u i r e d a f u r t h e r s t u d y ;

two D e l e g a t i o n s and o n e O b s e r v e r b e l i e v e d t h a t t h e Committee s h o u l d a d d r e s s t h e q u e s t i o n o f t h e c r i t i c a l a r e a s o f an a i r p o r t w h e r e a n o f f e n c e would be deemed t o e n d a n g e r t h e s a f e t y o f c i v i l a v i a t i o n o r i n t e r f e r e w i t h t h e s a f e o p e r a t i o n of t h e a i r p o r t . The p u r p o s e o f a s e c u r i t y zone was t o p r e v e n t any a c t s which c o u l d endanger c i v i l a v i a t i o n and t h e p a s s e n g e r s ; some D e l e g a t i o n s were o f t h e view t h a t t h e new i n s t r u m e n t s h o u l d a l s o l i s t s u c h a c t s of v i o l e n c e which might o r i g i n a t e from o u t s i d e t h e t e r r i t o r i a l l i m i t s of a n a i r p o r t , f o r i n s t a n c e t h e f i r i n g o f m i s s i l e s from o u t s i d e t h e a r e a of an a i r p o r t . Some D e l e g a t i o n s b e l i e v e d t h a t t h e new i n s t r u m e n t should a l s o r e f e r t o f a c i l i t i e s and s e r v i c e s beyond t h e t e r r i t o r i a l s c o p e of t h e a i r p o r t i f t h e y w e r e v i t a l f o r t n e o p e r a t i o n o f t h e a i r p o r t ( e . g . , a i r t r a f f i c c o n t r o l i n s t a l l a t i o n s and t h e i r p e r s o n n e l , e l e c t r i c power lines, tc.); two D e l e g a t i o n s s t a t e d t h a t o t h e r u n l a w f u l a c t s , a l t h o u g h n o t v i o l e n t and d i f f e r e n t from t h o s e e n v i s a g e d i n t h e d r a f t o f t h e Sub-Committee, s u c h a s t h e i l l i c i t t r a f f i c o f d r u g s , s h o u l d b e i n c l u d e d among t h e o f f e n c e s f a l l i n g w i t h i n t h e s c o p e o f a p p l i c a t i o n o f t h e new i n s t r u m e n t . O t h e r D e l e g a t i o n s b e l i e v e d t h a t t h e s u p p r e s s i o n of t h e t r a f f i c k i n g i n n a r c o t i c d r u g s was a s e p a r a t e and d i s t i n c t l e g a l i s s u e d i f f e r e n t from t h e mandate o f t h e L e g a l Committee and w i l l b e a d d r e s s e d w i t h i n t h e U n i t e d N a t i o n s i n a s e p a r a t e d r a f t Convention;
Not for Resale
--`,,```,,,,````-`-`,,`,,`,`,,`---
two D e l e g a t i o n s wondered w h e t h e r t h e c o n c e p t o f b o d i l y i n j u r y encompassed a l s o m o r a l p r e j u d i c e o r m e n t a l d i s t r e s s c a u s e d by a n a c t o f v i o l e n c e and s u g g e s t e d t h a t r e f e r e n c e s h o u l d b e made t o i n j u r y o n l y w i t h o u t q u a l i f y i n g it; two D e l e g a t i o n s and o n e O b s e r v e r e x p r e s s e d t h e o p i n i o n t h a t t h e new instrument should i n c l u d e i n t h e enumeration o f o f f e n c e s t h e t a k i n g o f h o s t a g e s and k i d n a p p i n g and communication o f f a l s e i n f o r m a t i o n . D e l e g a t i o n e x p r e s s e d t h e view t h a t t h e S t a t e i n whose j u r i s d i c t i o n t h e a i r p o r t i s s i t u a t e d b e a r s t h e major b r u n t o f t h e consequences, h a s t h e r e s p o n s i b i l i t y f o r s e c u r i t y and h a s most o f t h e e v i d e n c e and s h o u l d , t h e r e f o r e , have t h e p r i m a r y j u r i s d i c t i o n t o t r y t h e o f f e n d e r and s h o u l d have t h e r i g h t t o o b t a i n e x t r a d i t i o n ; t h a t D e l e g a t i o n a l s o b e l i e v e d t h a t t h e p l e a of t h e o f f e n c e b e i n g p o l i t i c a l should n o t b e a v a i l a b l e .
- one
D.
O r g a n i z a t i o n o f work
I n t e r n a t i o n a l elements
4:lO T h e r e was agreement i n t h e Committee t h a t t h e a p p l i c a b i l i t y o f t h e new i n s t r u m e n t s h o u l d b e based o n t h e e x i s t e n c e o f a s p e c i f i c i n t e r n a t i o n a l element. Such a n e l e m e n t was, i n t h e o p i n i o n o f s e v e r a l D e l e g a t i o n s , t o b e d e f i n e d w i t h g r e a t p r e c i s i o n s i n c e t h e i n s t r u m e n t would d e a l w i t h i s s u e s o f c r i m i n a l law where no l a c k o f p r e c i s i o n would b e a c c e p t a b l e . S e v e r a l D e l e g a t i o n s b e l i e v e d t h a t t h e i n t e r n a t i o n a l element i s t o b e found i n t h e concept " a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n " . T h a t t e r m was u s e d i n Assembly R e s o l u t i o n A26-4 which c o n s t i t u t e d t h e b a s i c mandate f o r t h e d r a f t i n g o f t h e new i n s t r u m e n t . Many d e l e g a t i o n s b e l i e v e d t h a t t h e r e was no need t o d e f i n e t h e t e r m " a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n " and s u p p o r t e d t h e c o n c l u s i o n o f t h e S p e c i a l Sub-Committee a c c o r d i n g t o which i t would b e a m a t t e r of f a c t , r a t h e r than a m a t t e r o f l e g a l d e f i n i t i o n , t o determine whether an a i r p o r t i n f a c t s e r v e d i n t e r n a t i o n a l c i v i l a v i a t i o n . I t was a l s o s t a t e d t h a t t h e Convention on I n t e r n a t i o n a l C i v i l A v i a t i o n and t h e Annexes t h e r e t o d i d n o t c o n t a i n a d e f i n i t i o n of " a i r p o r t " o r " i n t e r n a t i o n a l a i r p o r t " o r " a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n " and no p r a c t i c a l d i f f i c u l t i e s have a r i s e n from t h e a b s e n c e of s u c h a d e f i n i t i o n . While i t was c o n c e i v a b l e t o make a r e f e r e n c e t o an a i r p o r t " d e s i g n a t e d " by a C o n t r a c t i n g S t a t e as i n t e r n a t i o n a l a i r p o r t under t h e terms o f A r t i c l e 1 0 o r A r t i c l e 6 8 o f t h e Chicago C o n v e n t i o n , s u c h d e s i g n a t i o n need n o t always b e up t o d a t e and a i r c r a f t p e r f o r m i n g i n t e r n a t i o n a l f l i g h t s may u s e o t h e r a i r p o r t s ( e . g . , i n t h e c a s e of r e - r o u t i n g t o an a l t e r n a t e a i r p o r t , e t c . ) which would make t h e f i e l d of a p p l i c a b i l i t y o f t h e new i n s t r u m e n t u n c e r t a i n .
Not for Resale
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4:9 I n a c c o r d a n c e w i t h R u l e 28A o f t h e R u l e s o f P r o c e d u r e o f t h e L e g a l Committee, i t was a g r e e d t h a t t h e Committee would t a k e a s t h e b a s i s o f i t s d i s c u s s i o n t h e d r a f t t e x t p r e p a r e d by t h e Sub-committee. The Committee t h e n proceeded t o t h e d i s c u s s i o n o f s p e c i f i c i s s u e s w i t h t h e u n d e r s t a n d i n g t h a t d e c i s i o n s t h e r e o n w i l l b e t a k e n a f t e r a f u l l d i s c u s s i o n o f a l l s u c h i s s u e s and t h e i r mutual c o r r e l a t i o n . The f o l l o w i n g i s s u e s were c o n s i d e r e d by t h e L e g a l Committee :
- 152R e p o r t on Agenda Item 4
It was s t a t e d t h a t i n some c o u n t r i e s a n a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n i s a l s o u s e d f o r d o m e s t i c f l i g h t s o r t h a t so'metimes i n t e r n a t i o n a l f l i g h t s may b e r o u t e d f o r t e c h n i c a l p u r p o s e s o r o t h e r w i s e t o domestic a i r p o r t s b e f o r e r e a c h i n g t h e i r f i n a l d e s t i n a t i o n . Examples w e r e quoted when a d o m e s t i c a i r p o r t h a n d l e s an o c c a s i o n a l i n t e r n a r i o n a l f l i g h t .
4:11
One D e l e g a t i o n was o f t h e o p i n i o n t h a t a s u f f i c i e n t i n t e r n a t i o n a l 4:12 element w a s . p r e s e n t i n t h e d r a f t t e x t s i n c e t h e i n s t r u m e n t would a p p l y o n l y i f t h e o f f e n d e r o r a l l e g e d o f f e n d e r was found i n t h e t e r r i t o r y o f a S t a t e o t h e r t h a n t h e S t a t e where t h e a c t o f v i o l e n c e t o o k p l a c e . Some o t h e r D e l e g a t i o n s b e l i e v e d t h a t t h e new i n s t r u m e n t s h o u l d n o t b e r e s t r i c t e d t o s u c h a n a r r o w s i t u a t i o n b u t s h o u l d p r o v i d e f o r s p e c i f i c o b l i g a t i o n s of S t a t e s t o impose s e v e r e p e n a l t i e s , t o assume j u r i s d i c t i o n , t o t a k e p r e v e n t i v e m e a s u r e s , e t c . , even i n s i t u a t i o n s when t h e a l l e g e d o f f e n d e r i s found i n t h e S t a t e where t h e a c t of v i o l e n c e took p l a c e .
Other D e l e g a t i o n s s t a t e d t h a t t h e e x p r e s s i o n " a i r p o r t s e r v i n g i n t e r n a t i o n a l a v i a t i o n " f o l l o w e d t h e wording used i n Assembly R e s o l u t i o n A26-4 and t h a t any p r o p o s a l which would r e s t r i c t t h e s c o p e o f a p p l i c a t i o n o f t h e new i n s t r u m e n t might d e f e a t t h e p u r p o s e o f t h e e x e r c i s e u n d e r t a k e n by t h e L e g a l Committee a s i n s t r u c t e d by t h e 2 6 t h S e s s i o n o f t h e Assembly. 4: 1 4 T h r e e D e l e g a t i o n s were i n f a v o u r o f i n t r o d u c i n g i n t h e d r a f t t e x t a p r o v i s i o n r e f l e c t i n g t h e p r i n c i p l e i n A r t i c l e 1 0 o r A r t i c l e 6 8 o f t h e Chicago Convention which would s t i p u l a t e t h a t S t a t e s s h a l l n o t i f y t o ICA0 t h o s e a i r p o r t s d e s i g n a t e d , f o r t h e p u r p o s e of t h e new i n s t r u m e n t , a s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n . Two D e l e g a t i o n s e x p r e s s e d t h e o p i n i o n t h a t t h e main g o a l was t o p r o t e c t i n t e r n a t i o n a l c i v i l a v i a t i o n i n d e p e n d e n t l y o f t h e q u a l i f i c a t i o n o f t h e a i r p o r t u s e d by a n a i r c r a f t engaged i n a n i n t e r n a t i o n a l f l i g h t ; t h e new i n s t r u m e n t s h o u l d a p p l y i n a l l c a s e s o f o f f e n c e s e n v i s a g e d i n d r a f t A r t i c l e 1 - and t h e new i n s t r u m e n t s h o u l d a l s o a p p l y i n c a s e s where a n bis a i r p o r t has n o t been d e s i g n a t e d as s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n . That D e l e g a t i o n s u g g e s t e d t o i n c l u d e i n A r t i c l e 4 o f t h e M o n t r e a l Convention a p r o v i s i o n which would s t i p u l a t e t h a t i n t h e c a s e s e n v i s a g e d i n p a r a g r a p h 1 bis o f A r t i c l e 1, t h e new i n s t r u m e n t would a p p l y i f t h e o f f e n c e i s committed i n a n a i r p o r t d e s i g n a t e d by a C o n t r a c t i n g S t a t e as s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n , and a l s o a t any o t h e r a i r p o r t , i f t h e o f f e n c e was committed w h i l e measures were b e i n g t a k e n a t t h a t a i r p o r t t o s e r v e a n i n t e r n a t i o n a l f l i g h t . Another D e l e g a t i o n m a i n t a i n e d i t s p r o p o s a l p r e s e n t e d t o t h e Sub-Committee and s u g g e s t e d t o q u a l i f y t h e term " a i r p o r t " by t h e words " i f t h e a c t i n t e r f e r e s w i t h t h e s e r v i c e s provided f o r i n t e r n a t i o n a l c i v i l a v i a t i o n , o r has a n e f f e c t o n , o r i s l i n k e d w i t h a n i n t e r n a t i o n a l f l i g h t from o r t o t h e a i r p o r t con c e r n ed
--`,,```,,,,````-`-`,,`,,`,`,,`---
4: 13
D e f i n i t i o n of t h e "offence"
4:15 The Committee c o n s i d e r e d t h e d e f i n i t i o n o f t h e o f f e n c e on t h e b a s i s of p a r a g r a p h 1 b i s ( a ) , (b), ( c l o f A r t i c l e 1 p r e p a r e d by t h e Sub-committee and twenty-seven D e l e g a t i o n s p a r t i c i p a t e d i n t h e d i s c u s s i o n :
Not for Resale
Text p r e p a r e d by t h e Sub-Commit t ee
"1 bis.
(a)
Any p e r s o n commits a n o f f e n c e , o t h e r t h a n an o f f e n c e c o n t e m p l a t e d i n p a r a g r a p h 1, i f h e u n l a w f u l l y and i n t e n t i o n a l l y : performs [ o r t h r e a t e n s t o perform] a n a c t a t an a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l l i k e l y t o cause [serious] [bodily] injury interferes with o r is l i k e l y t o interfere o p e r a t i o n of t h e a i r p o r t .II of violence against a person a v i a t i o n which c a u s e s o r i s o r death i f such an a c t with t h e s a f e [ o r orderly]
The overwhelming m a j o r i t y o f t h e D e l e g a t i o n s were o f t h e o p i n i o n t h a t 4 : 16 t h e words w i t h i n s q u a r e b r a c k e t s s h o u l d b e d e l e t e d . V i r t u a l l y a l l D e l e g a t i o n s a g r e e d t h a t "or t h r e a t e n s t o perform" was a c o n c e p t which might l e a d t o d i f f i c u l t i e s i n i t s i n t e r p r e t a t i o n and p a r a g r a p h 1 bis ( a ) s h o u l d b e r e s t r i c t e d t o an o f f e n c e which c o n s t i t u t e s a n a c t u a l a c t o f v i o l e n c e . A m i n o r i t y view was t h a t t h e concept should b e r e t a i n e d because " t h r e a t " d i r e c t e d a g a i n s t p e r s o n s was a d a i l y r e a l i t y which c o u l d n o t b e o v e r l o o k e d and n o t t o m e n t i o n i t would c o n s t i t u t e a g a p i n t h e proposed i n s t r u m e n t ; however, i t was p o i n t e d o u t i n t h i s c o n t e x t t h a t a t t e m p t s would b e c o v e r e d . With r e s p e c t t o t h e word " s e r i o u s " , i t was b e l i e v e d t h a t i t was s u p e r f l u o u s and ambiguous t o q u a l i f y t h e i n j u r y ; t h e d e l e t i o n o f " s e r i o u s " would a v o i d c o n f l i c t i n g i n t e r p r e t a t i o n s by t h e c o u r t s . On t h e o t h e r hand, some D e l e g a t i o n s b e l i e v e d t h a t i t w a s n e c e s s a r y t o r e t a i n t h i s word i n o r d e r t o e n s u r e t h a t minor a c t s o f v i o l e n c e were n o t covered by t h e i n s t r u m e n t . Some D e l e g a t i o n s f u r t h e r b e l i e v e d t h a t r e f e r e n c e t o " b o d i t y " was a l s o n o t n e c e s s a r y s i n c e i t might n o t encompass o t h e r k i n d s o f i n j u r i e s s u c h a s m e n t a l d i s t r e s s o r m o r a l damage. The i n t e r p r e t a t i o n g i v e n i n t h e p a s t by t h e c o u r t s t o t h e e x p r e s s i o n " b o d i l y i n j u r y " had d e m o n s t r a t e d a l a c k of u n i f o r m i t y and a c e r t a i n c o n f u s i o n which were t o b e a v o i d e d . With r e s p e c t t o t h e t e r m " o r d e r l y " , i t was a l s o t h e g e n e r a l f e e l i n g o f t h e D e l e g a t i o n s t h a t t h i s word was r e d u n d a n t o r t o o ambiguous and t h a t r e f e r e n c e t o t h e s a f e o p e r a t i o n o f a n a i r p o r t was s u f f i c i e n t . On t h e o t h e r hand, some D e l e g a t i o n s b e l i e v e d t h a t a p h r a s e i n a d d i t i o n t o " s a f e o p e r a t i o n of t h e a i r p o r t " was n e c e s s a r y t o a d e q u a t e l y encompass t h e r a n g e o f a c t s o f v i o l e n c e t o be c o v e r e d .
--`,,```,,,,````-`-`,,`,,`,`,,`---
Text p r e p a r e d by t h e Sub-Committee "(b) d e s t r o y s o r s e r i o u s l y damages, o r s e r i o u s l y i n t e r f e r e s w i t h t h e f a c i l i t i e s provided f o r t h e s a f e [ o r o r d e r l y ] o p e r a t i o n of an a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n [ o r t h e p r o p e r handling of p a s s e n g e r s ] .'I
4:17 I t was g e n e r a l l y b e l i e v e d t h a t t h e e x p r e s s i o n s w i t h i n s q u a r e b r a c k e t s s h o u l d b e d e l e t e d . Two D e l e g a t i o n s advocated t h e need t o f o l l o w c l o s e l y i n paragraph 1 ( b ) t h e wording o f p a r a g r a p h 1 - ( a ) by r e f e r r i n g t o t h e bis f o l l o w i n g : "if s u c h a n a c t i n t e r f e r e s w i t h o r i s l i k e l y t o i n t e r f e r e w i t h t h e s a f e o p e r a t i o n of t h e a i r p o r t " . Some D e l e g a t i o n s s u g g e s t e d t o b e more s p e c i f i c
bis
Not for Resale
--`,,```,,,,````-`-`,,`,,`,`,,`---
154-
R e p o r t on Agenda Item 4
and t o t a k e a l s o i n t o c o n s i d e r a t i o n t h e a c t s . o f v i o l e n c e h i n d e r i n g t h e s a f e o p e r a t i o n o f a n a i r p o r t when t h o s e a c t s o r i g i n a t e from o r o c c u r o u t s i d e t h e p e r i m e t e r o f t h e a i r p o r t o r i f t h e f a c i l i t i e s d e s t r o y e d o r damaged a r e beyond t h e narrow g e o g r a p h i c s c o p e o f t h e a i r p o r t ( e . g . , ATC i n s t a l l a t i o n , e l e c t r i c power l i n e s t o t h e a i r p o r t , e t c . ) . Text p r e p a r e d by t h e Sub-Committee ."[(c) p l a c e s o r c a u s e s t o b e p l a c e d [ o r d e l i v e r e d ] upon t h e p r e m i s e s of a n a i r p o r t serving i n t e r n a t i o n a l c i v i l aviation a device o r substance which i s l i k e l y t o c a u s e d e s t r u c t i o n o r [ s e r i o u s ] damage t h e r e o n . ] "
Some D e l e g a t i o n s c o n s i d e r e d t h i s p a r a g r a p h n o t e s s e n t i a l s i n c e 4:18 p a r a g r a p h 1 bis ( a ) and ( b ) c o v e r e d a l r e a d y t h e s i t u a t i o n e n v i s a g e d i n ( c ) and c o n s e q u e n t l y s u g g e s t e d i t s d e l e t i o n . O t h e r D e l e g a t i o n s b e l i e v e d t h a t i t was e s s e n t i a l t o m a i n t a i n ( c ) s i n c e t h e p l a c i n g o f a bomb o r o t h e r s i m i l a r d e v i c e s was c a p a b l e o f c a u s i n g harm t o p e r s o n s and o f d i s r u p t i n g t h e o p e r a t i o n o f a i r p o r t f a c i l i t i e s ; c o n s e q u e n t l y , t h i s k i n d o f o f f e n c e s h o u l d b e h i g h l i g h t e d as a s e p a r a t e o f f e n c e . O t h e r D e l e g a t i o n s b e l i e v e d t h a t t h i s a c t would b e c o v e r e d by p a r a g r a p h 2 which w i l l d e a l w i t h a n a t t e m p t . During t h e d i s c u s s i o n o f t h e t e x t p r e p a r e d by t h e Sub-Committee, 4:19 t h r e e p r o p o s a l s o f amendment t o A r t i c l e 1, p a r a g r a p h 1 - ( a ) , ( b ) , ( c ) were bis s u b m i t t e d t o t h e a t t e n t i o n o f t h e Committee. Those p r o p o s a l s were p r e s e n t e d by t h e D e l e g a t i o n s o f t h e Kingdom o f t h e N e t h e r l a n d s ( L C / 2 6 - t l p / 4 - 6 ) , G r e e c e ( L C / 2 6 - W P / 4 - 7 ) and A u s t r a l i a ( L C / 2 6 - W P / 4 - 9 ) , r e s p e c t t v e l y .
4:19.1 The p r o p o s a l p r e s e n t e d by t h e D e l e g a t i o n o f t h e Kingdom of t h e N e t h e r l a n d s i n L C / 2 6 4 ! / 4 - 6 w i t h r e s p e c t t o A r t i c l e 1, p a r a g r a p h 1 - r e a d a s bis, follows:

"Moreover, any p e r s o n commits a n o f f e n c e , i f he u n l a w f u l l y and i n t e n t i o n a l l y commits a n a c t o f v i o l e n c e , u s i n g a bomb, g r e n a d e , r o c k e t , a u t o m a t i c f i r e a r m o r l e t t e r o r p a r c e l bomb, i n t h o s e p l a c e s o r areas w i t h i n t h e p r e m i s e s o r or. t h e p l a t f o r m s o f an a i r p o r t where p a s s e n g e r s o f i a t e r n a t i o n a l f l i g h t s a r e t o g a t h e r w i t h a view t o t h e i r d e p a r t u r e o r a r r i v a l , i f s u c h a c t c a u s e s o r i s l i k e l y t o c a u s e d e a t h o r p e r i l t o l i f e t o someone e l s e . "
4:19.2 follows:
The p r o p o s a l p r e s e n t e d by Greece p r e s e n t e d i n LC/26-WP/4-7
read as
"1 - Any p e r s o n commits a n o f f e n c e , o t h e r t h a n an o f f e n c e c o n t e m p l a t e d bis: i n paragraph 1, i f a t an a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n he u n l a w f u l l y and i n t e n t i o n a l l y :

(a)
p e r f o r m s a n a c t o f v i o l e n c e a g a i n s t a p e r s o n which c a u s e s o r i s l i k e l y t o cause injuries o r death;
Not for Resale
- 155 Report on Agenda Item 4 d e s t r o y s o r s e r i o u s l y damages i t s f a c i l i t i e s o r s e r v i c e s ; o r p l a c e s o r c a u s e s t o b e placed a d e v i c e o r s u b s t a n c e l i k e l y t o c a u s e d e s t r u c t i o n o r s e r i o u s damage t h e r e o n
(b) (c)
i f such a c t s a f f e c t o r a r e l i k e l y t o a f f e c t t h e s a f e o p e r a t i o n of t h e a i r p o r t o r s e r i o u s l y i n t e r f e r e with i t s o p e r a t i o n . " The p r o p o s a l p r e s e n t e d by t h e D e l e g a t i o n of A u s t r a l i a i n LC/26-WP/4-9 4:19.3 read as f o l l o w s :
"1 - ( b ) : d e s t r o y s o r [ s e r i o u s l y ] damages, o r [ s e r i o u s l y ] i n t e r f e r e s w i t h bis t h e f a c i l i t i e s provided f o r t h e s a f e [ o r o r d e r l y ] o p e r a t i o n of an a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n , whether l o c a t e d a t such a i r p o r t o r elsewhere, o r performs, [ o r t h r e a t e n s t o perform] an a c t of v i o l e n c e a g a i n s t persons o p e r a t i n g such f a c i l i t i e s . "
4:20 Eight D e l e g a t i o n s commented on LC/26-WP/4-6. Some D e l e g a t i o n s b e l i e v e d t h a t t h e l i s t i n g o f d e v i c e s used t o commit an a c t of v i o l e n c e was n o t e x h a u s t i v e and d i d n o t i n c l u d e a l l p o s s i b l e means which could endanger human l i f e o r d e s t r o y a i r p o r t f a c i l i t i e s . Furthermore, i t was b e l i e v e d t h a t t h e concept of c r i t i c a l a r e a s of an a i r p o r t was t o o narrowly d e f i n e d , s i n c e i t r e f e r r e d o n l y t o t h o s e p l a c e s o r a r e a s w i t h i n t h e premises o r on t h e p l a t f o r m s of an a i r p o r t where p a s s e n g e r s o f i n t e r n a t i o n a l f l i g h t s a r e t o g a t h e r w i t h a view t o t h e i r d e p a r t u r e o r a r r i v a l . There was a l s o no mention of t h e impact of t h e a c t of v i o l e n c e on t h e s a f e o p e r a t i o n of t h e a i r p o r t . I t was t h e r e f o r e considered t h a t LC/26-WP/4-6 would r e p r e s e n t a s t e p backward compared t o t h e t e x t prepared by t h e Sub-committee. Other D e l e g a t i o n s were of t h e view t h a t t h e p r o p o s a l i n LC/26-WP/4-6 had t h e m e r i t of s i m p l i c i t y and took i n t o c o n s i d e r a t i o n t h r e e r e l e v a n t c r i t e r i a : means used; g e o g r a p h i c a l d e l i m i t a t i o n of t h e a r e a s of an a i r p o r t where t h e a c t of v i o l e n c e i s committed; l i n k between t e r r o r i s t a c t s and i n t e r n a t i o n a l f l i g h t s . 4: 21 Some D e l e g a t i o n s commented on t h e p r o p o s a l c o n t a i n e d i n LC/26-WP/4-7. It was s t a t e d t h a t although t h e p r o p o s a l was aimed a t s i m p l i f y i n g t h e t e x t of t h e Sub-committee, i t d i d n o t t a k e i n t o c o n s i d e r a t i o n a c t s of v i o l e n c e d i r e c t e d a t c e r t a i n f a c i l i t i e s e s s e n t i a l f o r a i r p o r t o p e r a t i o n s . However, t h e p r o p o s a l was c o n s i d e r e d a u s e f u l s t e p i n t h e s i m p l i f i c a t i o n and c l a r i t y of t h e d r a f t i n g . 4: 22 With r e s p e c t t o t h e p r o p o s a l c o n t a i n e d i n LC/26-WP/4-9, i t was b e l i e v e d t h a t t h e p r o p o s a l was v e r y c l o s e t o t h a t of 1 - ( b ) a l t h o u g h i t bis brought a new dimension by r e f e r r i n g t o f a c i l i t i e s "whether l o c a t e d a t such a i r p o r t o r elsewhere".
--`,,```,,,,````-`-`,,`,,`,`,,`---
A s a r e s u l t of t h e d i s c u s s i o n on t h e t e x t of 1 - and on t h e bis 4: 23 p r o p o s a l s r e f e r r e d t o i n paragraph 4:19.1, 4:19.2 and 4:19.3 above, i t appeared t h a t t h e m a j o r i t y of t h e D e l e g a t i o n s favoured t h e t e x t of t h e Sub-committee, s u b j e c t t o t h e comments i n d i c a t e d i n paragraphs 4:16, 4:17 and 4:18 above and s u b j e c t t o some f u r t h e r d r a f t i n g refinement. I t was agreed t h a t t h e t e x t t o b e d r a f t e d should be broad and f l e x i b l e enough t o s t a n d t h e t e s t of t i m e and t o cover o f f e n c e s which might o c c u r i n t h e f u t u r e .
- Form
4: 24
o f t h e new i n s t r u m e n t
Summarizing t h e l o n g d i s c u s s i o n r e l a t i n g t o t h e form o f t h e new i n s t r u m e n t , t h e Chairman o f t h e L e g a l Committee s t a t e d t h a t i t was a p p a r e n t t h a t a n overwhelming m a j o r i t y o f t h e Committee f a v o r e d t h e p r e p a r a t i o n o f a p r o t o c o l s u p p l e m e n t a r y t o t h e M o n t r e a l Convention f o r t h e S u p p r e s s i o n o f Unlawful A c t s a g a i n s t t h e S a f e t y o f C i v i l A v i a t i o n . H e d e c l a r e d t h a t t h e Committee would work o n t h a t b a s i c .
E.
E s t a b l i s h m e n t o f a Working Group
One D e l e g a t i o n s u g g e s t e d t h e e s t a b l i s h m e n t o f a Working Group t o 4: 25 d i s c u s s t h e v a r i o u s p r o p o s a l s s u b m i t t e d t o t h e Committee and a t t e m p t t o r e a c h a f o r m u l a t i o n o f a t e x t which would t a k e i n t o c o n s i d e r a t i o n p r o p o s a l s made o r v i e w s e x p r e s s e d by t h e D e l e g a t i o n s .
4: 26 I n accordance w i t h Rule 1 5 of t h e Rules of Procedure o f t h e Legal Committee and f o l l o w i n g a v o t e r e g a r d i n g t h e c r e a t i o n o f a Working Group (58 i n f a v o u r , 3 a g a i n s t and 1 a b s t e n t i o n ) , a Working Group composed o f t h e f o l l o w i n g D e l e g a t i o n s was e s t a b l i s h e d : A r g e n t i n a , A u s t r a l i a , A u s t r i a , B u l g a r i a , Canada, C h i l e , C h i n a , C t e d I v o i r e , C z e c h o s l o v a k i a , F r a n c e , G r e e c e , I n d i a , I s l a m i c R e p u b l i c o f I r a n , J a p a n , Mexico, t h e Kingdom o f t h e N e t h e r l a n d s , P a k i s t a n , P e r u , P o l a n d , S e n e g a l , S p a i n , Sweden, S w i t z e r l a n d , USSR, U n i t e d Kingdom, U n i t e d S t a t e s o f America and Venezuela. A c t i n g u n d e r R u l e 24 o f t h e R u l e s of P r o c e d u r e , t h e Working Group i n v i t e d t h e O b s e r v e r o f IATA t o p a r t i c i p a t e i n i t s work. 4: 27 The terms o f r e f e r e n c e o f t h e Working Group a s a g r e e d by t h e Committee were as f o l l o w s :
--`,,```,,,,````-`-`,,`,,`,`,,`---
a)
t o c o n s i d e r t h e t e x t p r e p a r e d by t h e Sub-Committee i n t h e l i g h t o f t h e v i e w s e x p r e s s e d and p r o p o s a l s p r e s e n t e d a t t h e s e s s i o n o f t h e Committee; and t o a t t e m p t t o n a r r o w t h e s c o p e of d i f f e r e n c e o f views and t o p r e p a r e a t e x t o r a l t e r n a t i v e t e x t s f o r f u r t h e r c o n s i d e r a t i o n by t h e Committee.
b)
F.
Report o f t h e Working Group
Between 4 and 11 May 1987, t h e Working Group m e t and h e l d 7 m e e t i n g s 4: 28 u n d e r t h e Chairmanship o f M r . P.H. K i r s c h (Canada). The Working Group c o n s i d e r e d t h e t e x t o f p a r a g r a p h 1 b i s p r e p a r e d by t h e S u b - C o m m i t t e e , t o o k i n t o a c c o u n t t h e views e x p r e s s e d i n t h e Committee a n d , i n a d d i t i o n t o t h e p r o p o s a l s l i s t e d i n p a r a g r a p h s 4:19.1, 2 and 3 above, c o n s i d e r e d t h e p r o p o s a l s p r e s e n t e d by S p a i n (LC/26-WP/4-12), F r a n c e (LC/26-WP/4-13), Japan (LC/26-WP/4-14), Cuba (LC/26-WP/4-15) , Egypt (LC/26-WP/4-16), Switzerland (LC/26-WP/4-17), P o l a n d (LC/26-WP/4-18) , Kenya (LC/26-WP/4-19) , U n i t e d Kingdom (LC/26-WP/4-20) and t h e Kingdom o f t h e N e t h e r l a n d s (LC/26-WP/4-22).
Not for Resale
- 157R e p o r t on Agenda Item 4 On 5 May 1987, t h e Chairman o f t h e Working Group p r e s e n t e d o r a l l y a 4: 29 p r e l i m i n a r y r e p o r t t o t h e Committee on t h e p r o g r e s s o f d i s c u s s i o n on t h e bis. d e f i n i t i o n of o f f e n c e s i n p a r a g r a p h 1 - I n an e f f o r t t o narrow t h e scope o f d i f f e r e n t views, t h e Working Group c o n s i d e r e d s e v e r a l f o r m u l a t i o n s w h i c h would p u t a n emphasis on t h e p r o t e c t i o n o f p e r s o n s , w h i l e a v o i d i n g t o o b r o a d d e f i n i t i o n s o f t h e o f f e n c e ; p a r t i c u l a r a t t e n t i o n was g i v e n t o t h e q u a l i f i c a t i o n s o f t h e a c t i n t h e d r a f t p r e p a r e d by t h e Sub-committee and o t h e r proposals ("if such an a c t i n t e r f e r e s o r i s l i k e l y t o i n t e r f e r e w i t h t h e safe [or orderly] operation of t h e airport"); a t t h e t i m e of t h e preliminary r e p o r t , t h e Chairman o f t h e Working Group had p r e p a r e d a r e v i s e d d r a f t of p a r a g r a p h 1 - which t h e m a j o r i t y o f t h e Working Group c o u l d a c c e p t , w h i l e bis, some o t h e r s m a i n t a i n e d t h e i r s p e c i f i c p r o p o s a l s . 4:30 Having h e a r d t h e p r e l i m i n a r y r e p o r t o f t h e Chairman o f t h e Working Group, t h e Committee a g r e e d t h a t t h e Group s h o u l d c o n t i n u e i t s work, t a k i n g i n t o a c c o u n t t h e d e c i s i o n o f t h e Committee r e g a r d i n g t h e form o f t h e new i n s t r u m e n t ( p a r a g r a p h 4:24 a b o v e ) . The r e v i s e d t e x t o f p a r a g r a p h 1 - p r e p a r e d by t h e Chairman o f t h e bis 4:31 Working Group ( s e e p a r a g r a p h 4:29 above) r e a d as f o l l o w s :
--`,,```,,,,````-`-`,,`,,`,`,,`---
"1 bis.
(a)
Any p e r s o n commits a n o f f e n c e i f h e u n l a w f u l l y and i n t e n t i o n a l l y : p e r f o r m s a n a c t of v i o l e n c e a g a i n s t a p e r s o n a t [ a n a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n ] which causes or is l i k e l y t o cause [ s e r i o u s ] injury o r death; o r d e s t r o y s o r s e r i o u s l y damages t h e f a c i l i t i e s o r s e r v i c e s of [ a n a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n ] u s i n g a dangerous d e v i c e , s u b s t a n c e o r weapon; o r
(b)
[ ( c ) places o r causes t o be placed at [an a i r p o r t serving i n t e r n a t i o n a l c i v i l aviation] a device o r substance which i s l i k e l y t o c a u s e d e s t r u c t i o n o r s e r i o u s damage thereon], i f such a n a c t e n d a n g e r s o r i s l i k e l y t o endanger s a f e t y a t t h a t a i r po r t 'I
4:32 The Working Group a t i t s f o l l o w i n g m e e t i n g t o o k a n i n d i c a t i v e v o t e on t h e d r a f t t e x t p r e p a r e d by t h e Chairman t o d e t e r m i n e t h e d e g r e e o f g e n e r a l s u p p o r t f o r t h a t t e x t w i t h o u t any a d d i t i o n a l amendments. T h a t v o t e r e s u l t e d i n 18 v o t e s i n f a v o u r o f t h e t e x t a s i t s t o o d , 1 opposed and 5 a b s t e n t i o n s . 4:33 T h e r e a f t e r , t h e Working Group t o o k i n d i c a t i v e v o t e s on s e v e n s p e c i f i c q u e s t i o n s r e f l e c t i n g p r o p o s a l s f o r t h e amendment o f t h e t e x t i n p a r a g r a p h 4:31 above o r f o r t h e r e s o l u t i o n o f t h e r e m a i n i n g open problems p r e s e n t e d i n t h e t e x t i n s q u a r e b r a c k e t s . The f o l l o w i n g q u e s t i o n s were p o s e d :
Not for Resale
In p a r a g r a p h ( a ) s h o u l d t h e t e x t r e f e r t o a " t h r e a t t o perform t h e a c t of violence"?

In t h e i n d i c a t i v e v o t e , o n l y 5 members f a v o u r e d t h e i n c l u s i o n o f t h a t c o n c e p t , 18 were opposed and 3 a h s t a i n e d .
In p a r a g r a p h ( a ) o f t h e t e x t s h o u l d t h e word " s e r i o u s " b e k e p t b e f o r e t h e word " i n j u r y " ?
In t h e i n d i c a t i v e v o t e , 1 9 v o t e s were a f f i r m a t i v e , 7 n e g a t i v e w i t h no a b s t e n t i o n .
In p a r a g r a p h ( a ) s h o u l d t h e e x p r e s s i o n " i n j u r y " b e q u a l i f i e d by t h e a d j e c t i v e "bodily"?
In t h e i n d i c a t i v e v o t e , o n l y 3 members f a v o u r e d s u c h a q u a l i f i c a t i o n , 23 were opposed and 1 a b s t a i n e d .

Should t h e r e b e a q u a l i f y i n g e x p r e s s i o n r e f e r r i n g t o t h e means f o r t h e commission o f t h e o f f e n c e ( " u s i n g a d a n g e r o u s d e v i c e , s u b s t a n c e o r weapon") r e f e r r i n g b o t h t o s u b - p a r a g r a p h s ( a ) and ( b ) ?
I n t h e i n d i c a t i v e v o t e , t h e r e s u l t was i n c o n c l u s i v e w i t h 1 3 members f a v o u r i n g q u a l i f i c a t i o n f o r b o t h sub-paragraphs ( a ) and ( b ) , w i t h 11 opposed and 3 a b s t e n t i o n s .

I n sub-paragraph ( b ) should t h e q u a l i f i c a t i o n "using a d a n g e r o u s d e v i c e , s u b s t a n c e o r weapon" b e made more e x p l i c i t by r e f e r r i n g s p e c i f i c a l l y , e . g . , t o t h e u s e of e x p l o s i v e s o r s e t t i n g f i r e ( P r o p o s a l o f Poland i n
LC/26-W/4-18).
I n t h e i n d i c a t i v e v o t e , o n l y 4 members f a v o u r e d s u c h a f u r t h e r q u a l i f i c a t i o n , 21 were opposed and 2 a b s t a i n e d . Should s u b - p a r a g r a p h ( c ) d e a l i n g w i t h t h e p l a c i n g of a device o r substance be maintained i n t h e t e x t ?
I n t h e i n d i c a t i v e v o t e , 7 members f a v o u r e d t o m a i n t a i n s u b - p a r a g r a p h ( c ) , 18 were opposed and 2 a b s t a i n e d .

Should t h e q u a l i f y i n g p h r a s e a t t h e end o f t h e p a r a g r a p h ( " i f such a n act endangers o r i s l i k e l y t o endanger s a f e t y a t t h a t a i r p o r t " ) be maintained i n t h e t e x t ?
In t h e i n d i c a t i v e v o t e , 21 members answered i n t h e
a f f i r m a t i v e , 5 were opposed and 1 a b s t a i n e d .
--`,,```,,,,````-`-`,,`,,`,`,,`---
Not for Resale

. .
~
4:34
A f t e r t h e s e i n d i c a t i v e v o t e s , t h e Working Group a d d r e s s e d t h e following a d d i t i o n a l i s s u e s :
1)
By a n i n d i c a t i v e v o t e o f 18 i n f a v o u r , 1 opposed w i t h 8 a b s t e n t i o n s , t h e Working Group e x p r e s s e d i t s e l f i n f a v o u r of t h e p r o p o s a l o f P a k i s t a n t h a t sub-paragraph ( b ) , i n t h e English language, should s p e c i f i c a l l y r e f e r not only t o d e s t r u c t i o n o r s e r i o u s damage t o t h e f a c i l i t i e s b u t a l s o t o t h e " i n t e r r u p t i o n of t h e s e r v i c e s " .
By an i n d i c a t i v e v o t e o f 20 i n f a v o u r , 2 opposed w i t h 5 a b s t e n t i o n s , t h e Working Group e x p r e s s e d s u p p o r t f o r t h e p r o p o s a l o f t h e Union o f S o v i e t S o c i a l i s t R e p u b l i c s t h a t sub-paragraph ( b ) should a l s o r e f e r t o t h e d e s t r u c t i o n o r s e r i o u s damage t o " a i r c r a f t n o t i n s e r v i c e l o c a t e d a t t h e a i r p o r t " ; i t was u n d e r s t o o d t h a t t h e Working Group was a p p r o v i n g t h e p r i n c i p l e b u t t h a t t h e e x a c t wording was subject t o further drafting.
2)
--`,,```,,,,````-`-`,,`,,`,`,,`---
A s a r e s u l t o f t h e d e l i b e r a t i o n s o f t h e Working Group, t h e Chairman 4:35 o f t h e Working Group p r e s e n t e d t o t h e Committee, on 6 May 1987, a f u r t h e r p r o g r e s s r e p o r t t o g e t h e r w i t h t h e f o l l o w i n g new d r a f t t e x t o f p a r a g r a p h . 1 b i s d r a f t e d b y t h e Chairman o f t h e Working Group i n t h e l i g h t of t h e d e c i s i o n s t a k e n by t h e Working Group:
"1 b i s .
Any p e r s o n commits a n o f f e n c e i f h e u n l a w f u l l y and i n t e n t i o n a l l y [ u s i n g a d a n g e r o u s d e v i c e , s u b s t a n c e o r weapon]: (a) performs an a c t o f v i o l e n c e a g a i n s t a p e r s o n a t [ a n a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n ] which causes o r i s l i k e l y t o cause serious i n j u r y o r death; or d e s t r o y s o r s e r i o u s l y damages t h e f a c i l i t i e s [ o r t h e s e r v i c e s ] of [an a i r p o r t serving i n t e r n a t i o n a l c i v i l aviation] [ o r a i r c r a f t not i n service located at the a i r p o r t ] [ u s i n g a dangerous d e v i c e , s u b s t a n c e o r weapon] ,
(b)
i f such a n a c t e n d a n g e r s o r i s l i k e l y t o endanger s a f e t y a t t h a t a i r po r t I'
P r e s e n t i n g t h i s t e x t t o t h e Committee, t h e Chairman o f t h e Working 4:36 Group s t a t e d t h a t t h e t e x t u s e d s t i l l s e v e r a l e x p r e s s i o n s i n s q u a r e b r a c k e t s ; however, t h e s e s q u a r e b r a c k e t s d i d n o t i n g e n e r a l r e f l e c t any d i f f e r e n c e s o f o p i n i o n i n p r i n c i p l e b u t were i n s e r t e d f o r s t r i c t l y d r a f t i n g o r t e c h n i c a l r e a s o n s . Thus, f o r i n s t a n c e , t h e e x p r e s s i o n " a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n " was i n s q u a r e b r a c k e t s f o r t h e s o l e r e a s o n t h a t t h e Working Group d i d n o t a d d r e s s t h i s c o n c e p t and d i d n o t c o n s i d e r i t t o b e w i t h i n i t s
Not for Resale
- 160 Report on Agenda Item 4
mandate and t h e Committee i t s e l f was expected t o d e c i d e w h e t h e r t h i s t e r m r e q u i r e d a f u r t h e r q u a l i f i c a t i o n o r d e f i n i t i o n . The main problem n o t r e s o l v e d by t h e Working Group and e x p r e s s e d i n s q u a r e b r a c k e t s was t h e e x p r e s s i o n " u s i n g a dangerous d e v i c e , s u b s t a n c e o r weapon", i n p a r t i c u l a r t h e q u e s t i o n w h e t h e r i t s h o u l d b e used w i t h r e f e r e n c e t o b o t h sub-paragraph ( a ) and ( b ) o r o n l y i n sub-paragraph ( b ) o r n o t a t a l l . The Working Group a l s o d i s c u s s e d w h e t h e r p a r a g r a p h 1 - s h o u l d a l s o bis c o v e r t h e d e s t r u c t i o n o f o r damage t o f a c i l i t i e s l o c a t e d o u t s i d e t h e p e r i m e t e r o f t h e a i r p o r t b u t e s s e n t i a l f o r i t s o p e r a t i o n . On t h a t s u b j e c t , t h e views i n t h e Working Group were s p l i t and t h e m a t t e r was r e f e r r e d t o t h e Committee i t s e l f . The v a r i o u s views e x p r e s s e d i n t h e Working Group were t h a t t h e d e s t r u c t i o n o f f a c i l i t i e s l o c a t e d o u t s i d e t h e p e r i m e t e r o f a n a i r p o r t was i m p l i c i t l y included i n t h e t e x t s e t f o r t h i n paragraph 4 : 3 5 ; o t h e r s believed t h a t s u c h a c t s s h o u l d b e e x p l i c i t l y mentioned i n p a r a g r a p h 1 - s e v e r a l bis; o t h e r s b e l i e v e d t h a t s u c h t y p e of damage was n o t i m p l i c i t l y c o v e r e d by t h e t e x t and s h o u l d n o t b e e x p l i c i t l y m e n t i o n e d .
4:37
4:38 Thus, by 6 May 1 9 8 7 , t h e u n r e s o l v e d s u b s t a n t i a l q u e s t i o n s r e s u l t i n g from t h e work o f t h e Working Group were: 1)

The e x p r e s s i o n " u s i n g a dangerous d e v i c e , s u b s t a n c e o r weapon" and w h e t h e r i t would b e i n c l u d e d i n t h e t e x t r e f e r r i n g b o t h t o sub-paragraphs ( a ) and ( b ) o r o n l y i n sub-paragraph ( b ) o r n o t a t a l l . The d r a f t t e x t o f t h e Preamble which would, f o r p u r p o s e s of i n t e r p r e t a t i o n o f t h e t e x t , s e t f o r t h and d e f i n e t h e p r o t e c t e d s o c i a l i n t e r e s t s d e a l t w i t h i n t h e new instrument. The q u e s t i o n o f d e s t r u c t i o n of o r damage t o f a c i l i t i e s l o c a t e d o u t s i d e t h e p e r i m e t e r o f an a i r p o r t .
2)
3)
G.
F u r t h e r c o n s i d e r a t i o n s and d e c i s i o n s by t h e Committee
"AirDort c e r v i n e i n t e r n a t i o n a c i v i l a v i a t i o n "
4:39 The Committee resumed s u b s t a n t i v e d i s c u s s i o n o f t h e i n t e r n a t i o n a l element o r e l e m e n t s on which t h e new i n s t r u m e n t would b e b a s e d and i n t h a t context returned t o t h e expression "airport serving i n t e r n a t i o n a l c i v i l a v i a t i o n " a s used i n p a r a g r a p h 1 - d r a f t e d by t h e Sub-Committee and i n t h e bis t e x t s d e v e l o p e d by t h e Chairman o f t h e Working Group ( s e e p a r a g r a p h s 4:31 and 4 : 3 5 a b o v e ) . The d i s c u s s i o n was b a s e d on e a r l i e r g e n e r a l c o n s i d e r a t i o n s by t h e Committee r e p o r t e d above i n p a r a g r a p h s 4 : l O and 4 : 1 4 . 4:40 The D e l e g a t i o n o f Venezuela (LC/26-WP/4-8) proposed t h a t o r t h e p u r p o s e s o f t h e new i n s t r u m e n t a n a i r p o r t s h o u l d b e c o n s i d e r e d t o b e s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n i f i t h a s been s o d e s i g n a t e d i n c o n f o r m i t y w i t h A r t i c l e 10 o f t h e Chicago Convention and i s i n f a c t s o u t i l i z e d . The
--`,,```,,,,````-`-`,,`,,`,`,,`---
Not for Resale
- 161 R e p o r t o n Agenda I t e m 4
D e l e g a t i o n of t h e Union o f S o v i e t S o c i a l i s t R e p u b l i c s (LC/26-WP/4-10) proposed t o i n c l u d e i n A r t i c l e 4 o f t h e M o n t r e a l Convention o f 1971 a r e f e r e n c e t o "an a i r p o r t d e s i g n a t e d by a C o n t r a c t i n g S t a t e a s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n , and a l s o any o t h e r a i r p o r t i f t h e o f f e n c e was committed w h i l e m e a s u r e s were b e i n g t a k e n a t t h a t a i r p o r t t o s e r v i c e a n i n t e r n a t i o n a l f l i g h t " . The D e l e g a t i o n o f F i n l a n d m a i n t a i n e d i t s p r o p o s a l p r e s e n t e d a t t h e S e s s i o n o f t h e Sub-committee (LC/SC-VIA-REPORT, p a r a g r a p h 17.1 i n f i n e ) t o q u a l i f y t h e t e r m " a i r p o r t " by t h e words " i f t h e a c t i n t e r f e r e s w i t h t h e s e r v i c e s p r o v i d e d f o r i n t e r n a t i o n a l c i v i l a v i a t i o n , o r has an e f f e c t on, o r i s l i n k e d w i t h a n Many o t h e r D e l e g a t i o n s i n t e r n a t i o n a l f l i g h t from o r t o t h e a i r p o r t concerned". b e l i e v e d t h a t t h e Committee s h o u l d c o n f i r m t h e c o n c l u s i o n s o f t h e Sub-Committee t h a t t h e term " a i r p o r t serving i n t e r n a t i o n a l c i v i l aviation" should n o t b e f u r t h e r q u a l i f i e d by r e f e r e n c e t o a " d e s i g n a t i o n " by a S t a t e o r by a n y o t h e r additional qualifications.
4:41 The D e l e g a t i o n o f F i n l a n d f o r m a l l y proposed t h a t t h e Committee s h o u l d answer t h e f o l l o w i n g q u e s t i o n : "Does t h e Committee w i s h t o i n t r o d u c e s p e c i f i c wording t h a t t h e a p p l i c a t i o n o f t h e new i n s t r u m e n t would b e l i m i t e d o n l y t o t h e o p e r a t i o n s and u s e s o f i n t e r n a t i o n a l c i v i l a v i a t i o n ? " It was e x p l a i n e d t h a t i n c a s e of a p o s i t i v e answer t h e Committee would t h e n s e e k s p e c i f i c l a n g u a g e t o e x p r e s s t h i s a d d i t i o n a l i n t e r n a t i o n a l element and i n c a s e o f a n e g a t i v e answer t h e words " a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n " would remain w i t h o u t any f u r t h e r q u a l i f i c a t i o n .
4:42 Some D e l e g a t i o n s were p r e p a r e d t o g i v e an a f f i r m a t i v e answer t o t h e q u e s t i o n f o r m u l a t e d by t h e D e l e g a t i o n o f F i n l a n d ; t h e y a r g u e d t h a t i t w a s e s s e n t i a l t o f u r t h e r u n d e r l i n e t h e i n t e r n a t i o n a l e l e m e n t o n which t h e a p p l i c a t i o n of t h e P r o t o c o l would depend; t h e y b e l i e v e d t h a t t h e " a i r p o r t " s h o u l d b e u n e q u i v o c a l l y q u a l i f i e d by a f o r m a l d e s i g n a t i o n by a S t a t e u n d e r t h e t e r m s o f A r t i c l e 1 0 o r A r t i c l e 6 8 o f t h e Chicago Convention.
Many o t h e r D e l e g a t i o n s confirmed t h e m a j o r i t y v i e w o f t h e Sub-committee t h a t i t was n o t o f c r i t i c a l i m p o r t a n c e t o have a f u r t h e r d e f i n i t i o n o r q u a l i f i c a t i o n o f what i s an " a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n " and b e l i e v e d t h a t any d e f i n i t i o n o r q u a l i f i c a t i o n would b e t o t h e d e t r i m e n t o f t h e n e c e s s a r y f l e x i b i l i t y i n t h e a p p l i c a t i o n o f t h e new i n s t r u m e n t , e . g . , i n c a s e when a n a i r p o r t n o t d e s i g n a t e d a s a n i n t e r n a t i o n a l a i r p o r t i s i n f a c t u s e d as a n a l t e r n a t e a i r p o r t by i n t e r n a t i o n a l f l i g h t s . They emphasized t h a t i t s h o u l d b e a m a t t e r of f a c t t o b e d e t e r m i n e d by t h e S t a t e concerned o r by t h e j u d g e i n t h e p r o c e e d i n g s w h e t h e r a n a i r p o r t i n f a c t s e r v e d i n t e r n a t i o n a l c i v i l a v i a t i o n and t h a t t h e answer may b e d i f f e r e n t a t d i f f e r e n t t i m e s . I t was a l s o s t a t e d t h a t t h e a i r p o r t s h o u l d b e c o n s i d e r e d i n d i v i s i b l e , r e g a r d l e s s whether a p o r t i o n t h e r e o f i s u s e d e x c l u s i v e l y f o r d o m e s t i c f l i g h t s ; t h e new i n s t r u m e n t s h o u l d b e a p p l i c a b l e whenever t h e c i r c u m s t a n c e s j u s t i f y t h e c o n c l u s i o n t h a t t h e a i r p o r t was s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n ; moreover, p a r a g r a p h 1 - would d e f i n e t h e o f f e n c e s w i t h s u f f i c i e n t i n t e r n a t i o n a l bis e l e m e n t s which would make a d d i t i o n a l q u a l i f i c a t i o n s o f t h e t e r m " a i r p o r t " unnecessary.
4:43
--`,,```,,,,````-`-`,,`,,`,`,,`---
Not for Resale
4:44 A f t e r a n e x t e n s i v e d i s c u s s i o n t h e Committee t o o k a v o t e i n which 18 D e l e g a t i o n s answered a f f i r m a t i v e l y t o t h e q u e s t i o n f o r m u l a t e d by t h e D e l e g a t i o n of F i n l a n d ( P a r a g r a p h 4:41 a b o v e ) , 3 1 were opposed and 4 a b s t a i n e d . C o n s e q u e n t l y , t h e Committee a g r e e d t o c o n t i n u e i t s work o n t h e a s s u m p t i o n t h a t t h e r e was no need f o r a f u r t h e r q u a l i f i c a t i o n o f t h e words ' - a i r p o r t s e r v i n g international c i v i l aviation". However, some D e l e g a t i o n s wished t o r e s e r v e t h e i r p o s i t i o n u n t i l t h e f i n a l s t a g e of t h e d r a f t i n g .
- Means
u s e d i n t h e commission o f a n o f f e n c e
bis The d r a f t t e x t o f p a r a g r a p h 1 - p r e p a r e d by t h e Sub-committee d i d 4:45 n o t make any r e f e r e n c e t o t h e means u s e d by t h e o f f e n d e r f o r t h e commission of t h e a c t o f v i o l e n c e a g a i n s t p e r s o n s o r f o r t h e d e s t r u c t i o n o f f a c i l i t i e s . The r e f e r e n c e t o s u c h c r i m i n a l means was f i r s t i n t r o d u c e d by t h e D e l e g a t i o n o f t h e Kingdom o f t h e N e t h e r l a n d s (LC/26-WP/4-6 - s e e p a r a g r a p h 4:19.1 a b o v e ) . The wording "using a d a n g e r o u s d e v i c e , s u b s t a n c e o r weapon" t h e n a p p e a r e d i n t h e f i r s t d r a f t t e x t p r e s e n t e d by t h e Chairman o f t h e Working Group ( p a r a g r a p h ( b ) i n p a r a g r a p h 4:31 a b o v e ) and i n t h e second d r a f t t e x t ( p a r a g r a p h 4:35 a b o v e ) . I t was n o t e d t h a t t h e i n d i c a t i v e v o t e t a k e n i n t h e Working Group was i n c o n c l u s i v e : t h e Working Group d i d n o t v o t e on t h e q u e s t i o n w h e t h e r a l i s t o f means s h o u l d b e mentioned i n p a r a g r a p h 1 -b u t o n l y o n t h e q u e s t i o n where bis s u c h r e f e r e n c e s h o u l d b e p l a c e d ; 13 members wished t h a t q u a l i f y i n g e x p r e s s i o n t o a p p l y b o t h t o s u b - p a r a g r a p h s ( a ) on o f f e n c e s a g a i n s t p e r s o n s and ( b ) on o f f e n c e s a g a i n s t p r o p e r t y , b u t 11 members were opposed and 3 a b s t a i n e d . 4:46 The D e l e g a t i o n s w i s h i n g t o r e f e r i n p a r a g r a p h 1 - t o t h e s p e c i f i c bis means used i n t h e commission of t h e o f f e n c e a r g u e d t h a t i t w a s e s s e n t i a l t h a t t h e new i n s t r u m e n t s h o u l d b e a p p l i c a b l e o n l y t o i n d i s c r i m i n a t e a c t s o f s e r i o u s n a t u r e t y p i c a l o f t h e t e r r o r i s t a c t i v i t i e s ; t h e new i n s t r u m e n t s h o u l d n o t a p p l y t o minor o f f e n c e s o r t o a c t s o f " p r i v a t e " n a t u r e ; t h e y b e l i e v e d t h a t s u c h q u a l i f i c a t i o n o f t h e o f f e n c e would b e a c h i e v e d by r e f e r e n c e t o t h e s p e c i f i c means u s e d ; s u c h a r e f e r e n c e s h o u l d n o t be r e s t r i c t i v e b u t o n l y i l l u s t r a t i v e and t h e proposed d r a f t i n g w a s " u s i n g a dangerous d e v i c e , s u b s t a n c e o r weapon". 4:47 O t h e r D e l e g a t i o n s were opposed t o any r e f e r e n c e t o t h e means u s e d i n t h e commission o f t h e o f f e n c e ; t h e y argued t h a t any s u c h r e f e r e n c e would u n d u l y r e s t r i c t t h e a p p l i c a b i l i t y of t h e new i n s t r u m e n t and t h e e n u m e r a t i o n of t h e means c o u l d l e a v e l o o p h o l e s n o t c o v e r i n g p o s s i b l e f u t u r e t e r r o r i s t modus o p e r a n d i . F u r t h e r m o r e , t h e r e f e r e n c e t o t h e means u s e d would u n n e c e s s a r i l y c o m p l i c a t e t h e d e f i n i t i o n of t h e o f f e n c e , t h e s e r i o u s n a t u r e o f which was i n any case s u f f i c i e n t l y h i g h l i g h t e d i n t h e e l e m e n t s o f t h e o f f e n c e as d r a f t e d ( u n l a w f u l , i n t e n t i o n a l , a c t of v i o l e n c e , s e r i o u s i n j u r y o r d e a t h , d e s t r u c t i o n o r s e r i o u s damage, p l u s t h e a d d i t i o n a l q u a l i f i c a t i o n t h a t t h e a c t endangers o r i s l i k e l y t o e n d a n g e r s a f e t y a t t h e a i r p o r t ) ; t h i s d r a f t i n g would r u l e o u t a p p l i c a t i o n t o minor o f f e n c e s w i t h o u t any need t o r e f e r s p e c i f i c a l l y t o t h e means used in t h e commission of t h e o f f e n c e . 4:48 N e v e r t h e l e s s , many D e l e g a t i o n s who would have p r e f e r r e d n o t t o make any r e f e r e n c e t o t h e means u s e d were p r e p a r e d t o a c c e p t a s a compromise s o l u t i o n r e f e r e n c e t o s u c h means i n sub-paragraph ( b ) ; a s a r e c i p r o c a l c o n c e s s i o n t h e y e x p e c t e d t h a t no r e f e r e n c e t o s u c h means would be made i n sub-paragraph ( a ) s i n c e v i o l e n c e a g a i n s t p e r s o n s was i n t r i n s i c a l l y d a n g e r o u s and t h e Organization u s e d i n s u c h a c t were o f no r e l e v a n c e . means Copyright International Civil Aviation
--`,,```,,,,````-`-`,,`,,`,`,,`---
4:49 The D e l e g a t i o n o f Greece f o r m a l l y p r o p o s e d t o v o t e on t h e g e n e r a l q u e s t i o n w h e t h e r t h e r e s h o u l d b e i n p a r a g r a p h 1 - a l i s t o f t h e means u s e d i n bis t h e commission o f t h e o f f e n c e ; i f t h i s q u e s t i o n was answered i n t h e a f f i r m a t i v e , t h e n t h e Committee s h o u l d d e c i d e w h e t h e r s u c h a l i s t s h o u l d b e r e s t r i c t i v e o r o n l y i l l u s t r a t i v e ; t h e D e l e g a t i o n o f G r e e c e was opposed t o a r e s t r i c t i v e l i s t and would c o n s i d e r g e n e r a 1 d r a f t i n g a l o n g t h e l i n e s "any d e v i c e , s u b s t a n c e o r o t h e r c r i m i n a l means" o r "any means whatsoever". 4:50 The Chairman of t h e Working Group, s p e a k i n g as D e l e g a t e o f Canada, a p p e a l e d t o t h e Committee t o s a f e g u a r d t h e compromise r e a c h e d by t h e Working Group and p r o p o s e d t o v o t e o n t h e e n t i r e t e x t o f p a r a g r a p h 1 bis s e t f o r t h i n p a r a g r a p h 4:35 above, d e l e t i n g i n t h e i n t r o d u c t o r y p a r a g r a p h t h e t e x t i n s q u a r e b r a c k e t s ( " [ u s i n g a d a n g e r o u s d e v i c e , s u b s t a n c e o r weapon]") and a d d i n g i n sub-paragraph ( b ) t h e words " u s i n g a d a n g e r o u s d e v i c e , s u b s t a n c e o r weapon o r any o t h e r d a n g e r o u s means". A f t e r a p r o c e d u r a l d i s c u s s i o n on t h e r e l a t i v e p r i o r i t y i n which t h e 4 : 51 p r o p o s a l s o f t h e D e l e g a t i o n o f Greece and o f t h e D e l e g a t i o n o f Canada s h o u l d b e d e a l t w i t h , b o t h D e l e g a t i o n s withdrew t h e i r p r o p o s a l s pending f u r t h e r c o n s u l t a t i o n s and n e g o t i a t i o n s . 4 : 52 F u r t h e r c o n s u l t a t i o n s among i n t e r e s t e d D e l e g a t i o n s produced a new compromise which was p r e s e n t e d by t h e D e l e g a t i o n o f Canada; t h e i n t r o d u c t o r y p a r a g r a p h o f 1 - would r e a d : "Any p e r s o n commits a n o f f e n c e i f h e u n l a w f u l l y bis and i n t e n t i o n a l l y , u s i n g any d e v i c e , s u b s t a n c e o r weapon:"; i n sub-paragraph ( b ) t h e t e x t i n s q u a r e b r a c k e t s ( " [ u s i n g a d a n g e r o u s d e v i c e , s u b s t a n c e o r weapon]") would b e d e l e t e d .
4: 5 3 T h i s new compromise r e c e i v e d wide s u p p o r t and c o n s e n s u s t h e r e o n was n o t e d by t h e Committee. However, o n e D e l e g a t i o n would have p r e f e r r e d t h e wording "by any means, s u b s t a n c e o r weapon" which would b e a l l - e m b r a c i n g and c o v e r even a n a c t committed by b a r e hands; t h a t D e l e g a t i o n p r e f e r r e d t o f o r m a l i s e t h e c o n s e n s u s by a v o t e and f o r m a l l y p r o p o s e d , u n d e r R u l e 40 o f t h e R u l e s o f P r o c e d u r e , t o v o t e o n p a r a g r a p h 1 - a s now amended p a r a g r a p h by bis p a r a g r a p h ; s i n c e o t h e r D e l e g a t i o n s were opposed t o a s e p a r a t e v o t e o n e a c h p a r a g r a p h , t h e r e q u e s t f o r a s e p a r a t e v o t e was p u t t o a v o t e and f a i l e d h a v i n g o b t a i n e d 3 v o t e s i n s u p p o r t w i t h 42 opposed and 11 a b s t e n t i o n s .
4 : 54 T h e r e a f t e r t h e Committee t o o k a v o t e on t h e e n t i r e t e x t o f p a r a g r a p h 1 - a s amended i n t h e l i g h t o f t h e c o n s e n s u s and o n t h e bis u n d e r s t a n d i n g t h a t t h e Working Group w i l l c o n t i n u e t h e d r a f t i n g work o n t h e remaining i s s u e s s t i l l k e p t i n s q u a r e b r a c k e t s . The Committee a d o p t e d by 59 v o t e s w i t h o u t o p p o s i t i o n and w i t h 7 a b s t e n t i o n s t h e f o l l o w i n g t e x t :
"1 - Any p e r s o n commits a n o f f e n c e i f h e u n l a w f u l l y and bis. i n t e n t i o n a l l y u s i n g any d e v i c e , s u b s t a n c e o r weapon:
(a)
performs an a c t o f v i o l e n c e a g a i n s t a person a t a n a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n . which causes o r is l i k e l y t o cause s e r i o u s injury o r death; or
--`,,```,,,,````-`-`,,`,,`,`,,`---
Not for Resale
- 164 Report on Agenda I t e m 4
(b)
d e s t r o y s o r s e r i o u s l y damages t h e f a c i l i t i e s [ o r s e r v i c e s ] of a n a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n [ o r a i r c r a f t not i n service a t t h e a i r p o r t ] ,
i f s u c h a n a c t e n d a n g e r s o r i s l i k e l y t o endanger s a f e t y a t t h a t a i rpo r t I'
- Attempt
and c o m p l i c i t y
4 :55 The Sub-Committee e n d o r s e d t h e R a p p o r t e u r ' s t e x t o f p a r a g r a p h 2 o f A r t i c l e 1 o f t h e M o n t r e a l Convention r e l a t i n g t o a n a t t e m p t t o commit t h e and c o m p l i c i t y i n t h e commission o f s u c h o f f e n c e mentioned i n p a r a g r a p h 1 a n a c t . The Committee a g r e e d w i t h o u t o p p o s i t i o n t h a t a n a t t e m p t t o commit t h e o f f e n c e and c o m p l i c i t y i n s u c h o f f e n c e should a l s o c o n s t i t u t e an o f f e n c e .
The Committee a g r e e d t h a t sub-paragraph ( a ) of p a r a g r a p h 2 o f 4:56 A r t i c l e 1 o f t h e M o n t r e a l Convention of 1 9 7 1 s h o u l d b e amended t o r e a d : .
"2.
Any p e r s o n commits a n o f f e n c e i f he: a t t e m p t s t o commit any of t h e o f f e n c e s mentioned i n paragraph 1 o r paragraph 1 b i s of t h i s A r t i c l e ; or"
(a)
While t h i s wording a p p e a r s t o d e a l o n l y w i t h a t t e m p t and n o t e x p r e s s l y w i t h c o m p l i c i t y , t h e Committee n o t e d t h a t t h e r e would b e no need f o r an amendment o f sub-paragraph (b) o f p a r a g r a p h 2 o f A r t i c l e 1 of t h e M o n t r e a l Convention s i n c e i t s wording was s o all-encompassing t h a t i t would c o v e r c o m p l i c i t y i n t h e commission o f t h e o f f e n c e s b o t h under A r t i c l e 1 , p a r a g r a p h 1 of t h e Convention and o f f e n c e s u n d e r p a r a g r a p h 1 b i s .
4 : 57
The Sub-Committee a g r e e d t o i n s e r t a new p a r a g r a p h 2 - t o A r t i c l e 5 bis 4 : 58 of t h e Montreal Convention t o e s t a b l i s h j u r i s d i c t i o n o v e r t h e o f f e n c e s mentioned i n p a r a g r a p h 1 - i n t h e c a s e where t h e a l l e g e d o f f e n d e r i s p r e s e n t bis i n t h e t e r r i t o r y of t h e S t a t e concerned and t h a t S t a t e d o e s n o t e x t r a d i t e him p u r s u a n t t o A r t i c l e 8 t o any o f t h e S t a t e s mentioned i n p a r a g r a p h 1 o f A r t i c l e 5 of t h e Convention.
4 : 59 The Committee a g r e e d t o e s t a b l i s h j u r i s d i c t i o n of t h e S t a t e where t h e a l l e g e d o f f e n d e r i s found. However, t h e Committee n o t e d t h a t t h e t e x t p r e p a r e d by t h e Sub-committee made r e f e r e n c e t o e x t r a d i t i o n t o any of t h e S t a t e s mentioned i n p a r a g r a p h 1 o f A r t i c l e 5 of t h e M o n t r e a l Convention; t h e Committee b e l i e v e d t h a t o n l y t h e S t a t e i n t h e t e r r i t o r y of which t h e o f f e n c e u n d e r bis p a r a g r a p h 1 b i s was committed should b e mentioned i n p a r a g r a p h 2 - of A r t i c l e 5; t h e o t h e r S t a t e s mentioned i n p a r a g r a p h s ( b ) , ( c ) and ( d ) of p a r a g r a p h 1 o f A r t i c l e 5 ( S t a t e o f r e g i s t r y of t h e a i r c r a f t , S t a t e i n whose t e r r i t o r y t h e a i r c r a f t on b o a r d of which t h e o f f e n c e i s committed l a n d s w i t h t h e a l l e g e d o f f e n d e r s t i l l on b o a r d , S t a t e of p r i n c i p a l p l a c e o f b u s i n e s s o r permanent r e s i d e n c e o f t h e o p e r a t o r of a l e a s e d a i r c r a f t a g a i n s t which o r on board of which t h e o f f e n c e w a s committed) had no r e l e v a n t l i n k w i t h r e s p e c t t o a n o f f e n c e d e f i n e d i n t h e new p a r a g r a p h 1 b i s o f A r t i c l e 1.
--`,,```,,,,````-`-`,,`,,`,`,,`---
Not for Resale
A s a r e s u l t o f t h e s e d e l i b e r a t i o n s , t h e Committee d e c i d e d t h a t 4:60 p a r a g r a p h 2 b i s o f A r t i c l e 5 o f t h e M o n t r e a l Convention s h o u l d b e d r a f t e d as f o 1lows :
Each C o n t r a c t i n g S t a t e s h a l l l i k e w i s e t a k e s u c h "2 bis. measures a s may b e n e c e s s a r y t o e s t a b l i s h i t s j u r i s d i c t i o n o v e r t h e o f f e n c e s mentioned i n A r t i c l e 1, p a r a g r a p h 1 b i s and i n A r t i c l e 1, p a r a g r a p h 2 , i n s o f a r as t h a t p a r a g r a p h r e l a t e s t o t h o s e o f f e n c e s , i n t h e c a s e where t h e a l l e g e d o f f e n d e r i s p r e s e n t i n i t s t e r r i t o r y and i t d o e s n o t e x t r a d i t e him p u r s u a n t t o A r t i c l e 8 t o t h e S t a t e mentioned i n p a r a g r a p h i ( a ) o f t h i s A r t i c 1e. "
The Committee n o t e d t h e p r e s e n t a t i o n o f t h e p r o p o s a l by t h e 4:61 D e l e g a t i o n o f t h e Kingdom o f t h e N e t h e r l a n d s (LC/26-WP/4-6) which would have l i m i t e d t h e j u r i s d i c t i o n o f t h e S t a t e where t h e a l l e g e d o f f e n d e r ( o r o f f e n d e r i n c a s e o f a p r e v i o u s e s c a p e ) i s p r e s e n t o n l y t o t h o s e c a s e s when t h a t S t a t e d o e s n o t c o m p l y w i t h a s p e c i f i c r e q u e s t f o r e x t r a d i t i o n t o t h e S t a t e i n whose t e r r i t o r y t h e o f f e n c e was committed; i t was e x p l a i n e d t h a t t h e S t a t e where t h e o f f e n d e r was p r e s e n t s h o u l d n o t b e o b l i g e d t o e x e r c i s e i t s j u r i s d i c t i o n i f t h e S t a t e p r i m a r i l y c o n c e r n e d ( S t a t e i n t h e t e r r i t o r y o f which t h e a c t was committed) d o e s n o t r e q u e s t e x t r a d i t i o n . T h i s p r o p o s a l was n o t s u p p o r t e d by t h e Committee s i n c e i t would d e p a r t from t h e p r i n c i p l e s o f The Hague ( 1 9 7 0 ) and Montreal ( 1 9 7 1 ) C o n v e n t i o n s , a s w e l l a s numerous o t h e r c o n v e n t i o n s i n s i m i l a r f i e l d s , none o f which made t h e e x e r c i s e o f j u r i s d i c t i o n by t h e S t a t e where t h e o f f e n d e r i s found c o n t i n g e n t on t h e r e q u e s t f o r e x t r a d i t i o n and r e f u s a l o f s u c h a r e q u e s t . The D e l e g a t i o n o f t h e Kingdom of t h e N e t h e r l a n d s n o t e d t h e l a c k o f s u p p o r t f o r i t s p r o p o s a l and s t a t e d t h a t i t s Government had made reservations w i t h r e s p e c t t o some i n s t r u m e n t s t h a t i t w i l l n o t assume j u r i s d i c t i o n t o p r o s e c u t e c e r t a i n a c t s u n l e s s t h e r e had been a r e q u e s t f o r e x t r a d i t i o n t o which t h e a u t h o r i t i e s d i d n o t a c c e d e ; s u c h a r e s e r v a t i o n may b e made a l s o w i t h r e s p e c t t o t h e new i n s t r u m e n t . The D e l e g a t i o n o f t h e Union o f S o v i e t S o c i a l i s t R e p u b l i c s i n t r o d u c e d 4:62 i t s p r o p o s a l (LC/26-WP/4-5) t o i n c l u d e i n t h e new i n s t r u m e n t a p r o v i s i o n t h a t i n c o n s i d e r i n g t h e , q u e s t i o n of e x t r a d i t i o n of o f f e n d e r s p r e f e r e n c e should b e g i v e n t o t h e S t a t e i n which t h e a i r p o r t , a t which t h e o f f e n c e was committed, i n s i t u a t e d ; t h i s c o u l d b e accomplished by a new p a r a g r a p h o f A r t i c l e 8 o f t h e Montreal Convention. The D e l e g a t i o n o f t h e Kingdom o f t h e N e t h e r l a n d s s u g g e s t e d t o a d d a new p a r a g r a p h 4 t o A r t i c l e 5 a c c o r d i n g to which "when bis, a p p l y i n g t h i s Convention t o a n o f f e n c e mentioned i n A r t i c l e 1 - C o n t r a c t i n g S t a t e s s h a l l p a y d u e r e g a r d t o t h e i n t e r e s t s and r e s p o n s i b i l i t i e s o f t h e C o n t r a c t i n g S t a t e i n whose t e r r i t o r y t h e o f f e n c e h a s been committed"
Not for Resale
--`,,```,,,,````-`-`,,`,,`,`,,`---
The D e l e g a t i o n o f F r a n c e wished t o emphasize t h a t i n v i e w o f t h e d r a f t i n g o f A r t i c l e 1 - b ) , which i t c o n s i d e r e d t o b e t o o g e n e r a l i n n a t u r e bis and n o t s u f f i c i e n t l y s p e c i f i c t o c o n s t i t u t e a p e n a l o f f e n c e , i t was n o t i n a position t o accept t h e i n c l u s i o n of t h a t paragraph i n paragraph 2 b i s of A r t i c l e 5.
(LC/26-WP/4-6). The Committee n o t e d t h a t t h e S t a t e i n whose t e r r i t o r y t h e o f f e n c e i s committed i s most c l o s e l y l i n k e d t o t h e o f f e n c e and most i n t e r e s t e d t o i n i t i a t e p r o s e c u t i o n ; moreover, a l l e v i d e n c e would b e more r e a d i l y a v a i l a b l e i n t h a t S t a t e r a t h e r t h a n i n t h e S t a t e where t h e o f f e n d e r happened t o b e f o u n d ; however, i n v i e w of t h e d e c i s i o n o f t h e Committee on t h e d r a f t i n g o f A r t i c l e 5 , p a r a g r a p h 2 b i s , t h e r e c o u l d b e no competing c l a i m s f o r e x t r a d i t i o n s i n c e o n l y t h e S t a t e where t h e o f f e n c e was committed c o u l d r e q u e s t e x t r a d i t i o n ; t h u s t h e p r i o r i t y of e x t r a d i t i o n t o t h e S t a t e o f t h e o c c u r r e n c e was a b s o l u t e . Any o t h e r i n t e r p r e t a t i o n o f t h e c o n c e p t o f p r i o r i t y t o e x t r a d i t e t o t h e S t a t e where t h e o f f e n c e was committed would n o t b e aimed a t s o l v i n g t h e competing p r i o r i t i e s among d i f f e r e n t S t a t e s t o r e q u e s t e x t r a d i t i o n , b u t a t t h e d e l i c a t e b a l a n c e between p r o s e c u t i o n and e x t r a d i t i o n a s e s t a b l i s h e d i n t h e M o n t r e a l C o n v e n t i o n . The Committee was n o t p r e p a r e d t o u p s e t t h i s d e l i c a t e b a l a n c e which was o n e o f t h e c o r n e r s t o n e s o f b o t h The Hague and M o n t r e a l C o n v e n t i o n s .
T h e r e was e x t e n s i v e d i s c u s s i o n on t h e q u e s t i o n how a c e r t a i n 4:63 prominence o r p r i o r i t y c o u l d b e g i v e n i n t h e new i n s t r u m e n t t o t h e S t a t e where t h e o f f e n c e was committed. The Chairman summarized t h e d i s c u s s i o n i n t h e f o l l o w i n g way: t h e Committee n o t e d s p e c i f i c p r o p o s a l s t o i n t r o d u c e t h e e l e m e n t o f p r e f e r e n c e t o e x t r a d i t e t o t h e S t a t e where t h e o f f e n c e was committed; t h o s e views were s h a r e d by a c e r t a i n number of D e l e g a t i o n s . S e v e r a l o t h e r Delegations believed t h a t without expressing a preference f o r e x t r a d i t i o n t o t h e S t a t e where t h e o f f e n c e t o o k p l a c e , t h e new i n s t r u m e n t c o u l d c o n t a i n a p r o v i s i o n t h a t C o n t r a c t i n g S t a t e s s h a l l pay d u e r e g a r d t o t h e i n t e r e s t s and r e s p o n s i b i l i t i e s of t h e C o n t r a c t i n g S t a t e i n whose t e r r i t o r y t h e o f f e n c e h a s b e e n committed. Some D e l e g a t i o n s e x p r e s s e d t h e o p i n i o n t h a t t h e P r o t o c o l s h o u l d g i v e a p p r o p r i a t e acknowledgement t o o t h e r p o s s i b l e b a s e s of j u r i s d i c t i o n , namely j u r i s d i c t i o n b a s e d upon t h e p r i n c i p l e o f p a s s i v e p e r s o n a l i t y and n a t i o n a l i t y o f t h e o f f e n d e r . These a d d i t i o n a l b a s e s o f j u r i s d i c t i o n would n o t change t h e e x i s t i n g b a l a n c e between p r o s e c u t i o n o r e x t r a d i t i o n c o n t a i n e d i n t h e M o n t r e a l Convention. Some D e l e g a t i o n s a l s o b e l i e v e d t h a t i n t h i s c o n t e x t i t might b e u s e f u l t o e x p l o r e f u r t h e r t h e p o s s i b l e j u r i s d i c t i o n of t h e S t a t e of r e g i s t r y o r of t h e S t a t e o f t h e o p e r a t o r o f t h e a i r c r a f t d e s t r o y e d o r damaged w h i l e n o t i n s e r v i c e . O t h e r s f e l t t h a t t h e S t a t e where t h e n o n e t h e l e s s t h e r e should o n l y b e t w o r e l e v a n t S t a t e s o f f e n c e was committed and t h a t where t h e o f f e n d e r i s apprehended. Many o t h e r D e l e g a t i o n s e x p r e s s e d t h e view t h a t t h e new i n s t r u m e n t s h o u l d i n no way d e p a r t from t h e Montreal Convention of 1 9 7 1 , s h o u l d not u p s e t t h e d e l i c a t e b a l a n c e between p r o s e c u t i o n and e x t r a d i t i o n and t h a t t h e r e s h o u l d b e no s p e c i f i c p r o v i s i o n ' f a v o u r i n g i n any way t h e S t a t e i n t h e t e r r i t o r y o f which t h e o f f e n c e was committed. The Committee a g r e e d n o t t o g o beyond t h e s c o p e o f t h i s e x p l o r a t o r y d i s c u s s i o n and a g r e e d t h a t t h e s e p o i n t s o f view s h o u l d b e r e f l e c t e d i n t h e r e p o r t s o t h a t t h e y c a n b e c o n s i d e r e d by S t a t e s i n advance o f t h e D i p l o m a t i c Conference; t h e D i p l o m a t i c Conference t h e r e a f t e r w i l l b e i n t h e b e s t position t o take a f i n a l decision.
- Preventive
measures
The D e l e g a t i o n of t h e Union o f S o v i e t S o c i a l i s t R e p u b l i c s i n t r o d u c e d 4:64 i t s p r o p o s a l (LC/26-WP/4-5) t h a t t h e new i n s t r u m e n t s h o u l d i n c l u d e p r o v i s i o n s c o n t a i n i n g more s p e c i f i c o b l i g a t i o n s o f S t a t e s i n p r e v e n t i n g a c t s o f v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n ; t h e measures proposed f o r

--`,,```,,,,````-`-`,,`,,`,`,,`---
Not for Resale
167 -
' R e p o r t on Agenda I t e m 4
p o s s i b l e i n c l u s i o n i n A r t i c l e 1 0 of t h e M o n t r e a l Convention would i n c l u d e t h e p r e s e n c e of. d u l y a u t h o r i z e d and t r a i n e d p e r s o n n e l r e s p o n s i b l e f o r e n s u r i n g s a f e t y a t a i r p o r t s ; i n s p e c t i o n s and m o n i t o r i n g o f s a f e t y m e a s u r e s ; t h e e s t a b l i s h m e n t o f r u l e s t o p r e v e n t u n a u t h o r i z e d a c c e s s o f p e r s o n s o r means o f t r a n s p o r t i n t o a c o n t r o l l e d zone and a l s o i n t o o t h e r z o n e s i m p o r t a n t f o r t h e o p e r a t i o n of t h e a i r p o r t .
4:65 Some D e l e g a t i o n s e x p r e s s e d i n t e r e s t i n h a v i n g some p r o v i s i o n s r e l a t i n g t o t h e p r e v e n t i v e m e a s u r e s ; some o t h e r D e l e g a t i o n s b e l i e v e d t h a t s u c h p r o v i s i o n s would r e q u i r e a s p e c i f i c d e f i n i t i o n o f " c o n t r o l l e d zones" a t t h e a i r p o r t , a c o u r s e o f a c t i o n which was abandoned by t h e Committee as a component o f t h e d e f i n i t i o n o f t h e o f f e n c e . Some o t h e r D e l e g a t i o n s b e l i e v e d t h a t t h e p r o p o s a l was u s e f u l b u t b e l i e v e d t h a t d e t a i l e d t e c h n i c a l p r e v e n t i v e m e a s u r e s s h o u l d r a t h e r remain w i t h i n t h e ambit of Annex 17 to t h e Chicago C o n v e n t i o n which was f l e x i b l e and c o u l d q u i c k l y b e amended t o a d j u s t t o c u r r e n t t e c h n i c a l n e e d s . Some o t h e r D e l e g a t i o n s f a v o u r e d t h a t t h e D i p l o m a t i c C o n f e r e n c e may consider adopting a d e c l a r a t i o n o r r e s o l u t i o n dealing with preventive measures. The Chairman summarized t h e d i s c u s s i o n by s t a t i n g t h a t t h e r e p o r t s h o u l d r e f l e c t t h e p r o p o s a l made, t h e s u p p o r t by some D e l e g a t i o n s and t h e d o u b t s e x p r e s s e d by o t h e r D e l e g a t i o n s . P r i o r t o t h e D i p l o m a t i c C o n f e r e n c e t h e S t a t e s w i l l have a n o p p o r t u n i t y t o c o n s i d e r t h e m a t t e r f u r t h e r and C o n f e r e n c e would b e i n t h e b e s t p o s i t i o n t o t a k e a f i n a l d e c i s i o n .
4:66 During t h e g e n e r a l d e b a t e , some D e l e g a t i o n s wished t h a t t h e new i n s t r u m e n t s h o u l d c o n t a i n p r o v i s i o n s e n a b l i n g p a r t i c i p a t i o n i n i t a l s o of t h o s e S t a t e s who a r e n o t p a r t i e s t o t h e o r i g i n a l M o n t r e a l Convention o f 1971. The S e c r e t a r y o f t h e Committee e x p l a i n e d t h a t a l e g a l t e c h n i q u e c o u l d b e found t o accomplish s u c h an aim. However, h e e x p r e s s e d d o u b t s w h e t h e r s u c h a c o u r s e o f a c t i o n would b e d e s i r a b l e ; i t was t h e p o l i c y o f t h e O r g a n i z a t i o n e x p r e s s e d i n t h e Assembly R e s o l u t i o n s t o e x h o r t a l l C o n t r a c t i n g S t a t e s t o become p a r t i e s t o t h e Tokyo, The Hague and M o n t r e a l C o n v e n t i o n s ; t h e S e c r e t a r y G e n e r a l had b e e n f o l l o w i n g u p t h i s p o l i c y i n h i s c o r r e s p o n d e n c e and p e r s o n a l c o n t a c t s w i t h S t a t e s n o t y e t p a r t i e s t o t h e M o n t r e a l Convention. To a d o p t a p r o v i s i o n a c c e p t i n g a s a f a c t t h a t some S t a t e s would n o t become p a r t i e s t o t h e M o n t r e a l Convention c o u l d b e i n t e r p r e t e d a s g o i n g c o n t r a r y t o t h e a c c e p t e d p o l i c y o f t h e O r g a n i z a t i o n . F u r t h e r m o r e , no C o n t r a c t i n g S t a t e a d v i s e d t h e S e c r e t a r y G e n e r a l o f any s u b s t a n t i v e d i f f i c u l t i e s w i t h t h e M o n t r e a l C o n v e n t i o n ; a l t h o u g h some S t a t e s have e x p r e s s e d o p p o s i t i o n t o a m u l t i l a t e r a l a p p r o a c h , t h e y a c c e p t e d t h e p r i n c i p l e s o f t h e M o n t r e a l Convention e i t h e r i n b i l a t e r a l a r r a n g e m e n t s o r by u n i l a t e r a l a p p l i c a t i o n . Many o f t h e member S t a t e s o f I C A 0 who a r e n o t y e t p a r t i e s t o t h e M o n t r e a l Convention were smaller d e v e l o p i n g c o u n t r i e s who had j o i n e d t h e O r g a n i z a t i o n r e c e n t l y and e x p e c t e d t e c h n i c a l a s s i s t a n c e from t h e Organization i n t h e implementation of t h e n e c e s s a r y l e g i s l a t i o n .
Some D e l e g a t i o n s s t r e s s e d t h a t t h e i n s t r u m e n t b e i n g d e v e l o p e d was a 4:67 m u l t i l a t e r a l agreement o f a u n i v e r s a l n a t u r e a n d , i n a c c o r d a n c e w i t h g e n e r a l l y a c c e p t e d norms o f i n t e r n a t i o n a l t r e a t y law, a l l S t a t e s s h o u l d h a v e t h e p o s s i b i l i t y o f p a r t i c i p a t i n g in i t . T h i s would c o r r e s p o n d t o t h e e x i s t i n g p r a c t i c e i n a c c o r d a n c e w i t h which m u l t i l a t e r a l a g r e e m e n t s d e v e l o p e d w i t h i n t h e
--`,,```,,,,````-`-`,,`,,`,`,,`---
Not for Resale
framework o f I C A O f o r t h e s u p p r e s s i o n of u n l a w f u l a c t s a r e o f a u n i v e r s a l n a t u r e and a r e open f o r p a r t i c i p a t i o n i n them by a l l S t a t e s w i t h o u t any r e s t r i c t i o n s . Such a p r o v i s i o n would most e f f e c t i v e l y promote t h e p o l i c y o f I C A O and t h e e f f o r t s i t makes t o e n s u r e t h e p a r t i c i p a t i o n i n m u l t i l a t e r a l agreements of t h e w i d e s t number o f S t a t e s . Some o t h e r D e l e g a t i o n s had a d i f f e r e n t u n d e r s t a n d i n g o f t h e I C A O p o l i c y and b e l i e v e d t h a t i t r e q u i r e d u n i v e r s a l a c c e p t a n c e o f t h e M o n t r e a l Convention and were convinced t h a t t h i s g e n e r a l p o l i c y o f t h e O r g a n i z a t i o n w i t h r e s p e c t t o t h e M o n t r e a l Convention s h o u l d n o t b e i n any way undermined o r c o n t r a d i c t e d . It was a g r e e d t h a t b o t h t h e s e views w i l l b e r e f l e c t e d i n t h e r e p o r t f o r f u r t h e r c o n s i d e r a t i o n by S t a t e s p r i o r t o t h e Diplomatic Conference.
- Possible
c o n f l i c t between t h e M o n t r e a l Convention and t h e new i n s t r u m e n t
The Committee n o t e d d u r i n g t h e g e n e r a l d e b a t e a v i e w t h a t t h e r e might 4:68 b e a p o s s i b l e c o n f l i c t between t h e p r o v i s i o n o f A r t i c l e 1 ( d ) of t h e M o n t r e a l Convention and t h e p r o p o s e d p a r a g r a p h 1 - T h e r e might b e a s i t u a t i o n where bis. a n a c t would d e s t r o y o r damage a i r n a v i g a t i o n f a c i l i t i e s and t h e r e b y e n d a n g e r t h e s a f e t y of a i r c r a f t i n f l i g h t ( s i t u a t i o n f o r e s e e n i n A r t i c l e 1, p a r a g r a p h 1 ( d ) o f t h e M o n t r e a l Convention) and a t t h e same t i m e d e s t r o y f a c i l i t i e s o f a n a i r p o r t and t h e r e b y endanger t h e s a f e t y a t t h a t a i r p o r t . T h i s c o u l d c r e a t e d i f f i c u l t i e s s i n c e t h e o f f e n c e i n A r t i c l e 1, p a r a g r a p h 1 ( d ) o f t h e Montreal Convention o n l y c a l l e d f o r s e v e r e p e n a l t i e s b u t d i d n o t c r e a t e i n t e r n a t i o n a l j u r i s d i c t i o n (see A r t i c l e 5 , paragraph 2 of t h e Montreal C o n v e n t i o n ) . On t h e o t h e r h a n d , t h e o f f e n c e f o r e s e e n i n p a r a g r a p h 1 - ( b ) a s bis proposed by t h e Committee would c r e a t e i n t e r n a t i o n a l j u r i s d i c t i o n .
4:69
T h i s problem o f c o n f l i c t was a d d r e s s e d by t h e Working Group which c o n s i d e r e d t h a t t h e r e were t h r e e p o s s i b l e a p p r o a c h e s t o i t s s o l u t i o n :
a)
t o c r e a t e a p a r a l l e l regime i n p a r a g r a p h 1 - i d e n t i c a l w i t h t h a t o f bis t h e M o n t r e a l C o n v e n t i o n ; t h i s a p p r o a c h was c o n s i d e r e d t o o c o m p l i c a t e d and n o t v i a b l e ; i n case o f a n o v e r l a p between t h e two p r o v i s i o n s , t h e P r o t o c o l would e s t a b l i s h p r i o r i t y e i t h e r f o r t h e regime u n d e r t h e M o n t r e a l Convention o r f o r t h e regime u n d e r t h e new i n s t r u m e n t ; and t h e b e s t c o u r s e o f a c t i o n appeared t o b e n o t t o p r o v i d e f o r t h e s o l u t i o n o f a p o s s i b l e c o n f l i c t and l e a v e t h e m a t t e r t o p r a c t i c a l i n t e r p r e t a t i o n of t h e i n s t r u m e n t by S t a t e s .
b)
I t was argued t h a t i n p r a c t i c e a r e a l c o n f l i c t would n o t a r i s e s i n c e t h e p r o v i s i o n o f A r t i c l e 1, p a r a g r a p h 1 ( d ) was g e n e r a l i n c h a r a c t e r w h i l e p a r a g r a p h 1 b i s ( b ) would c o n t a i n a s p e c i f i c p r o v i s i o n . I t was a l s o a r g u e d t h a t i n p r a c t i c a l s i t u a t i o n s t h e r e could b e a v a s t v a r i e t y of s p e c i f i c c i r c u m s t a n c e s which c o u l d n o t b e f o r e s e e n ; c o n s e q u e n t l y , t h e b e s t c o u r s e of a c t i o n would b e t o l e a v e t h e m a t t e r f o r i n t e r p r e t a t i o n by c o u r t s . The L e g a l Committee a g r e e d t o t h i s a p p r o a c h recommended by t h e Working Group.
--`,,```,,,,````-`-`,,`,,`,`,,`---
c)
Not for Resale
- 169R e p o r t o n Agenda Item

--`,,```,,,,````-`-`,,`,,`,`,,`---
I.
F u r t h e r d r a f t i n g c o n s i d e r a t i o n s by t h e Committee
- ParazraDh
1 bis
On 11 May 1987, t h e Chairman o f t h e Working Group r e p o r t e d on t h e 4:70 p r o g r e s s of work a c c o m p l i s h e d by t h e Group r e g a r d i n g t h e f u r t h e r d r a f t i n g of t h e t e x t r e f e r r e d t o t h a t Group ( s e e t e x t i n p a r a g r a p h 4:54 a b o v e ) . In a d d i t i o n t o f u r t h e r d r a f t i n g o f p a r a g r a p h 1 b i s , t h e Working Group a l s o the c o n s i d e r e d a d r a f t t e x t o f t h e Preamble. With r e s p e c t t o p a r a g r a p h 1 t e x t a g r e e d i n t h e Working Group r e a d as f o l l o w s :
e,
Any p e r s o n commits a n o f f e n c e i f h e u n l a w f u l l y and i n t e n t i o n a l l y , u s i n g any d e v i c e , s u b s t a n c e o r weapon: (a) p e r f o r m s a n a c t o f v i o l e n c e a g a i n s t a p e r s o n a t an a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n which c a u s e s o r i s l i k e l y t o c a u s e serious injury o r death; o r d e s t r o y s o r s e r i o u s l y damages t h e f a c i l i t i e s o f a n a i r p o r t s e r v i n g international c i v i l aviation o r a i r c r a f t not i n service located thereon [ o r s e r i o u s l y i n t e r f e r e s with] [ o r i n t e r r u p t s ] t h e service of t h e a i r p o r t ,
"1 bis.
(b)
i f such an a c t endangers o r i s l i k e l y t o endanger s a f e t y a t t h a t a i r p o r t . " 4:71 The Chairman o f t h e Working Group o u t l i n e d t h e i n d i c a t i v e v o t e s on some fundamental q u e s t i o n s o f t h e d r a f t i n g a s f o l l o w s : The Working Group f i r s t a d d r e s s e d t h e q u e s t i o n w h e t h e r paragraph 1 - ( b ) should r e f e r a l s o s p e c i f i c a l l y t o f a c i l i t i e s bis l o c a t e d o u t s i d e a n a i r p o r t ; t h e wording " f a c i l i t i e s w h e r e v e r l o c a t e d " would have a c c o m p l i s h e d t h a t p u r p o s e . I n a n i n d i c a t i v e v o t e , 9 v o t e s were i n f a v o u r of s u c h r e f e r e n c e , 15 were opposed and 2 a b s t a i n e d . C o n s e q u e n t l y , t h e words "wherever l o c a t e d " were n o t i n c l u d e d i n t h e t e x t p r e s e n t e d by t h e Working Group t o t h e Committee. The Working Group n e x t a d d r e s s e d t h e words "or a i r c r a f t n o t i n s e r v i c e a t t h e a i r p o r t " which, i n t h e t e x t approved by t h e Committee ( s e e p a r a g r a p h 4 : 5 4 a b o v e ) , was l e f t i n s q u a r e b r a c k e t s . The Working Group b e l i e v e d t h a t t h e D i p l o m a t i c C o n f e r e n c e i t s e l f s h o u l d s t u d y t h e i m p l i c a t i o n s o f t h e i n c l u s i o n i n t h e new i n s t r u m e n t o f t h e t e r m " a i r c r a f t not i n service located a t t h e airport". A q u e s t i o n of d e f i n i n g s u c h a n a i r c r a f t may have t o b e a d d r e s s e d by t h e C o n f e r e n c e . The Working Group t o o k an i n d i c a t i v e v o t e o n t h e f o l l o w i n g q u e s t i o n : "On t h e u n d e r s t a n d i n g t h a t t h e L e g a l Committee s h m l d r e q u e s t t h e D i p l o m a t i c C o n f e r e n c e t o s t u d y t h e i m p l i c a t i o n s of t h e i n c l u s i o n i n t h e new i n s t r u m e n t o f a i r c r a f t n o t i n s e r v i c e l o c a t e d a t t h e a i r p o r t , s h o u l d t h e s q u a r e b r a c k e t s b e removed around t h e expression 'or a i r c r a f t not i n service located thereon' i n s u b - p a r a g r a p h ( b ) ? " Twenty-one v o t e s were i n t h e a f f i r m a t i v e , 2 i n t h e n e g a t i v e and 4 a b s t a i n e d .
- 170R e p o r t o n Agenda I t e m 4
3)
I n t h e t e x t approved by t h e L e g a l Committee ( s e e p a r a g r a p h 4 : 5 4 a b o v e ) t h e e x p r e s s i o n "or i n t e r r u p t s t h e s e r v i c e s " was l e f t i n s q u a r e b r a c k e t s . The Working Group took a n i n d i c a t i v e w t e whether t h e word " i n t e r r u p t s " s h o u l d b e r e p l a c e d by " s e r i o u s l y i n t e r f e r e s w i t h " . S i n c e t h e i n d i c a t i v e v o t e l e d t o a n i n c o n c l u s i v e 12 v o t e s i n f a v o u r , 1 0 a g a i n s t w i t h 4 a b s t e n t i o n s , b o t h e x p r e s s i o n s were l e f t a s a l t e r n a t i v e s i n s q u a r e b r a c k e t s f o r a f i n a l d e c i s i o n by t h e Committee
4:72 The Committee c o n s i d e r e d which o f t h e a l t e r n a t i v e s i n p a r a g r a p h ( b ) would b e p r e f e r r e d ( e i t h e r " o r s e r i o u s l y i n t e r f e r e s w i t h " o r "or i n t e r r u p t s " ) . On v o t e , 25 D e l e g a t i o n s f a v o u r e d t h e f i r s t a l t e r n a t i v e and 25 f a v o u r e d t h e o t h e r . S i n c e t h e Committee was e q u a l l y d i v i d e d on t h i s m a t t e r , i t was b e l i e v e d t h a t a f i n a l d e c i s i o n s h o u l d b e l e f t t o t h e D i p l o m a t i c C o n f e r e n c e . However, t h e D e l e g a t i o n o f B r a z i l p r o p o s e d a compromise s o l u t i o n which would have t a k e n c a r e b o t h o f t h e q u a l i f i c a t i o n "wherever l o c a t e d " and o f t h e q u a l i f i c a t i o n s " i n t e r f e r e s " o r " i n t e r r u p t s " ; t h e t e x t would r e f e r t o f a c i l i t i e s " i n t e n d e d f o r T h i s p r o p o s a l was w i d e l y t h e o p e r a t i o n of a n a i r p o r t o r l o c a t e d thereon". s u p p o r t e d b u t some D e l e g a t i o n s o b j e c t e d t h a t t h i s p r o p o s a l would amount t o a r e o p e n i n g o f t h e d e b a t e and of t h e d e c i s i o n t a k e n by t h e Committee ( s e e p a r a g r a p h 4:54 above) which s p e c i f i c a l l y wished t o i n c l u d e t h e t e r m " s e r v i c e s " i n a d d i t i o n t o f a c i l i t i e s i n t h e E n g l i s h l a n g u a g e . It was b e l i e v e d t h a t t h e Committee had r e a c h e d n e a r u n a n i m i t y t o i n c l u d e t h e c o n c e p t o f " s e r v i c e s " . However, a f t e r a f u r t h e r d i s c u s s i o n i t was a g r e e d t h a t t h e p r o p o s a l o f B r a z i l and t h e s u p p o r t f o r i t would b e d u l y r e f l e c t e d i n t h e R e p o r t f o r p o s s i b l e c o n s i d e r a t i o n w h i l e m a i n t a i n i n g i n t h e f u t u r e t e x t t h e concept o f " s e r v i c e s " approved by t h e Committee. 4:73 The D e l e g a t i o n o f P e r u wished t o p l a c e o n t h e r e c o r d i t s s t a t e m e n t t h a t t h e t e x t of s u b - p a r a g r a p h ( b ) s h o u l d t a k e i n t o a c c o u n t t h e s p e c i f i c s i t u a t i o n s , n e e d s and i n t e r e s t s o f p a r t i c u l a r S t a t e s ; i n P e r u some a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n had some i m p o r t a n t t e c h n i c a l f a c i l i t i e s up t o 15 km away from t h e p e r i m e t e r o f t h e a i r p o r t ; t h e new i n s t r u m e n t s h o u l d p r o v i d e p r o t e c t i o n f o r s u c h f a c i l i t i e s and t h a t D e l e g a t i o n implored t h e Committee t o d i s c u s s t h i s m a t t e r f u r t h e r . One o t h e r D e l e g a t i o n s t a t e d t h a t " f a c i l i t i e s " were c l e a r l y d e f i n e d by t h e e x p r e s s i o n ."of a n a i r p o r t " and t h a t a f u r t h e r q u a l i f i c a t i o n , e .g., by r e f e r e n c e t o "wherever l o c a t e d " would b e redundant; it w a s a l s o s t a t e d t h a t t h e e x p r e s s i o n "intended f o r t h e a i r p o r t " would b e l e g a l l y ambiguous and i m p r e c i s e ,
On t h e p r o p o s a l of t h e D e l e g a t i o n of Jamaica, d u l y s e c o n d e d , t h e 4:74 Committee t o o k a new v o t e t o i n t r o d u c e i n p a r a g r a p h (b) i n s t e a d o f t h e a l t e r n a t i v e t e x t s i n s q u a r e b r a c k e t s t h e wording "or d i s r u p t s t h e s e r v i c e s of t h e airport". T h i s p r o p o s a l was a d o p t e d by 3 2 v o t e s i n f a v o u r , 5 opposed w i t h 16 a b s t e n t i o n s .
Not for Resale
--`,,```,,,,````-`-`,,`,,`,`,,`---
- 171 R e p o r t o n Agenda Item 4
- Preamble
4:75
The Chairman o f t h e Working Group p r e s e n t e d t o t h e Committee t h e f o l l o w i n g t e x t o f a Preamble p r e p a r e d by t h e Group: "Pr eamb 1e CONSIDERING t h a t u n l a w f u l a c t s o f v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n s t r i k e i n d i s c r i m i n a t e l y a t innocent persons, cause d e s t r u c t i o n o r damage a t s u c h a i r p o r t s , undermine t h e c o n f i d e n c e o f t h e p e o p l e s o f t h e world i n s a f e t y a t s u c h a i r p o r t s , d i s t u r b t h e s a f e and o r d e r l y conduct o f c i v i l a v i a t i o n f o r a l l S t a t e s and c o n s t i t u t e a n a f f r o n t t o t h e conscience of t h e world;
CONSIDERING t h a t t h e o c c u r r e n c e of such acts i s a m a t t e r of g r a v e concern;
CONSIDERING t h a t i t i s n e c e s s a r y t o adopt p r o v i s i o n s a d d i t i o n a l t o t h o s e of i n t e r n a t i o n a l agreements i n f o r c e ;

CONSIDERING t h a t i t i s d e s i r a b l e t o c o v e r u n l a w f u l a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n i n supplement t o t h e Convention o r t h e S u p p r e s s i o n o f Unlawful A c t s a g a i n s t t h e S a f e t y o f C i v i l A v i a t i o n s i g n e d a t M o n t r e a l on 23 September 1971."
The Chairman of t h e Working Group e x p l a i n e d t h a t on t h e b a s i s of 4:76 p r e l i m i n a r y a l t e r n a t i v e t e x t s of t h e d r a f t Preamble p r e s e n t e d t o t h e Working Group by i t s Chairman t h e f o l l o w i n g i n d i c a t i v e v o t e s were t a k e n by t h e Group i n t h e p r o c e s s of t h e d r a f t i n g o f t h e t e x t o f t h e Preamble: Should t h e r e b e a s p e c i f i c r e f e r e n c e t o " t e r r o r i s m " i n any form i n c l u d e d i n t h e Preamble? Nine v o t e s were i n f a v o u r , 13 opposed and 4 a b s t a i n e d ; c o n s e q u e n t l y , no r e f e r e n c e t o " t e r r o r i s m " was i n c l u d e d i n t h e t e x t p r e s e n t e d by t h e Working Group. Should t h e r e b e a l i s t o f means used t o commit a n a c t o f v i o l e n c e i n t h e t e x t of t h e Preamble? E i g h t v o t e s f a v o u r e d s u c h a n i n c l u s i o n , 18 were opposed and t h e r e were no a b s t e n t i o n s ; c o n s e q u e n t l y , t h e d r a f t t e x t of t h e Preamble d i d n o t make any r e f e r e n c e t o t h e s p e c i f i c means used i n t h e commission o f t h e a c t o f v i o l e n c e . Should t h e e x p r e s s i o n " d i s t u r b t h e s a f e and o r d e r l y conduct o f c i v i l a v i a t i o n f o r a l l S t a t e s " b e k e p t i n t h e Preamble? Twenty-two v o t e s were i n f a v o u r , o n e opposed and 3 a b s t a i n e d . Should t h e l a s t p a r a g r a p h s of t h e Preamble b e r e f o r m u l a t e d a s one s i n g l e paragraph along t h e following l i n e s ? :
"CONSIDERING t h a t i t i s d e s i r a b l e t o c o v e r u n l a w f u l a c t s o f v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n i n supplement t o t h e Convention f o r t h e S u p p r e s s i o n of Unlawful Acts a g a i n s t t h e S a f e t y of C i v i l A v i a t i o n s i g n e d a t M o n t r e a l on 23 September 1971".
--`,,```,,,,````-`-`,,`,,`,`,,`---
T h e r e were 23 v o t e s i n f a v o u r , 1 opposed and 2 a b s t e n t i o n s .

Not for Resale
- 172Report on Agenda I t e m 4
On t h e p r o p o s a l of t h e D e l e g a t i o n o f J a m a i c a , s u p p o r t e d by many 4:77 D e l e g a t i o n s , t h e Committee d e c i d e d t o d e l e t e i n t h e f i r s t C o n s i d e r i n g c l a u s e t h e words " s t r i k e i n d i s c r i m i n a t e l y a t i n n o c e n t p e r s o n s , c a u s e d e s t r u c t i o n o r damage" and r e p l a c e them by " j e o p a r d i z e t h e s a f e t y of p e r s o n s and p r o p e r t y " . I t was argued t h a t t h i s new wording would c o r r e s p o n d f u l l y t o t h e preambular c l a u s e o f t h e M o n t r e a l Convention; f u r t h e r m o r e , t h e terms " i n d i s c r i m a t e l y " and "innocent" were n o t c o n s i d e r e d t o b e l e g a l l y p r e c i s e and d i d n o t r e f l e c t t h e s u b s t a n t i v e d e c i s i o n s of t h e Committee on t h e d e f i n i t i o n of t h e o f f e n c e . The new t e x t was approved by a v o t e of 42 a g a i n s t 8 w i t h 9 a b s t e n t i o n s .
4:78 The Committee a g r e e d by consensus t o t h e p r o p o s a l of t h e D e l e g a t i o n
of Colombia t o d e l e t e i n t h e f i r s t C o n s i d e r i n g c l a u s e t h e words "and c o n s t i t u t e an a f f r o n t t o t h e c o n s c i e n c e o f t h e world". One D e l e g a t i o n , s u p p o r t e d by a

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number of o t h e r s , s u g g e s t e d t o a l i g n t h e wording of t h e f i r s t C o n s i d e r i n g c l a u s e w i t h t h a t of t h e M o n t r e a l Convention and t h e Assembly R e s o l u t i o n A26-4 by r e f o r m u l a t i n g t h e words "undermine t h e c o n f i d e n c e o f t h e p e o p l e s of t h e world i n s a f e t y a t s u c h a i r p o r t s " by "undermine t h e c o n f i d e n c e of t h e p e o p l e s of t h e world i n t h e s a f e t y of c i v i l a v i a t i o n " . 4:79 With r e f e r e n c e t o t h e second C o n s i d e r i n g c l a u s e , t h e Committee a c c e p t e d by c o n s e n s u s t h e p r o p o s a l of t h e D e l e g a t i o n s of C z e c h o s l o v a k i a and Greece t o r e f l e c t i n t h a t c l a u s e t h e t e x t of t h e l a s t C o n s i d e r i n g c l a u s e o f t h e Montreal Convention. C o n s e q u e n t l y , t h e second C o n s i d e r i n g c l a u s e ' w o u l d r e a d :
"CONSIDERING t h a t t h e o c c u r r e n c e o f s u c h a c t s i s m a t t e r o f g r a v e c o n c e r n and t h a t , f o r t h e purpose o f d e t e r r i n g s u c h a c t s , t h e r e i s an u r g e n t need t o p r o v i d e a p p r o p r i a t e measures f o r punishment o f offenders."
4:80 S i m i l a r l y , by c o n s e n s u s , t h e Committee a g r e e d t o t h e p r o p o s a l o f t h e D e l e g a t i o n o f Canada, s u p p o r t e d by many D e l e g a t i o n s , t o combine t h e t h i r d and f o u r t h C o n s i d e r i n g c l a u s e s w i t h a minor r e d r a f t of t h e t e x t t o r e a d as f o l l o w s :

"CONSIDERING t h a t i t i s n e c e s s a r y t o adopt p r o v i s i o n s a d d i t i o n a l t o t h o s e of t h e Convention f o r t h e S u p p r e s s i o n of Unlawful A c t s a g a i n s t t h e S a f e t y o f C i v i l A v i a t i o n s i g n e d a t M o n t r e a l on 23 September 1971, t o d e a l w i t h u n l a w f u l a c t s of v i o l e n c e a t a i r p o r t s serving international c i v i l aviation."
J. C o n c l u s i o n s and d e c i s i o n s of t h e Committee
4:81 A s a r e s u l t o f i t s d e l i b e r a t i o n s and d e c i s i o n s , t h e Committee r e a c h e d t h e following conclusions: 4:82 The new i n s t r u m e n t s h o u l d b e d r a f t e d i n t h e form of a P r o t o c o l supplementary t o t h e Convention f o r t h e S u p p r e s s i o n o f Unlawful A c t s a g a i n s t t h e S a f e t y o f C i v i l A v i a t i o n s i g n e d a t Montreal on 23 September 1971, t o d e a l w i t h unlawful a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n ; s u c h P r o t o c o l would n o t amend t h e b a s i c p r i n c i p l e s of t h a t Convent i o n .
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- 173 Report on Agenda Item 4
The d r a f t t e x t approved by t h e Committee f o r i n c l u s i o n i n t o such a 4 : 83 Protocol reads a s follows:
1)
Preamble
"THE STATES PARTIES TO THIS PROTOCOL
CONSIDERING t h a t u n l a w f u l a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n j e o p a r d i z e t h e s a f e t y of p e r s o n s and p r o p e r t y a t such a i r p o r t s , undermine t h e confidence of t h e peoples of t h e world i n s a f e t y a t such a i r p o r t s and d i s t u r b t h e s a f e and o r d e r l y conduct of c i v i l a v i a t i o n f o r a l l S t a t e s ;
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CONSIDERING t h a t t h e o c c u r r e n c e of such a c t s i s a matter of g r a v e concern and t h a t , f o r t h e prpose of d e t e r r i n g such a c t s , t h e r e i s an u r g e n t need t o p r o v i d e a p p r o p r i a t e measures f o r punishment of offenders;
CONSIDERING t h a t i t i s n e c e s s a r y t o adopt p r o v i s i o n s a d d i t i o n a l t o t h o s e of t h e Convention f o r t h e Suppression of Unlawful A c t s a g a i n s t t h e S a f e t y of C i v i l A v i a t i o n signed a t Montreal on 23 September 1971, t o d e a l w i t h unlawful a c t s of v i o l e n c e a t a i r p o r t s serving international c i v i l aviation,
HAVE AGREED AS, FOLLOWS :'I
2)
A r t i c l e 1, paragraph 1 b i s
"1 - Any person commits an o f f e n c e i f he u n l a w f u l l y and bis. i n t e n t i o n a l l y , u s i n g any d e v i c e , s u b s t a n c e o r weapon:

( a ) performs an a c t of v i o l e n c e a g a i n s t a person a t an a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n which c a u s e s o r i s l i k e l y t o cause s e r i o u s i n j u r y o r death; o r ( b ) d e s t r o y s o r s e r i o u s l y damages t h e f a c i l i t i e s of an a i r p o r t serving internat ional c i v i l aviation o r a i r c r a f t not i n s e r v i c e located thereon o r d i s r u p t s t h e s e r v i c e s of t h e a i r p o r t , i f such an a c t endangers o r i s l i k e l y t o endanger s a f e t y a t t h a t a i r p o r t .I'
3)
A r t i c l e 1, paragraph 2
"2.
Any person a l s o commits an o f f e n c e i f h e :
(a)
a t t e m p t s t o commit any of t h e o f f e n c e s mentioned bis i n paragraph 1 o r paragraph 1 - of t h i s Article; or"
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- 174R e p o r t o n Agenda I t e m 4 A r t i c l e 5 , paragraph 2 b i s Each C o n t r a c t i n g S t a t e s h a l l l i k e w i s e t a k e s u c h "2 b i s . measures a s may b e n e c e s s a r y t o e s t a b l i s h i t s j u r i s d i c t i o n o v e r t h e o f f e n c e s mentioned i n A r t i c l e 1, p a r a g r a p h 1 and i n A r t i c l e 1, p a r a g r a p h 2 , i n s o f a r a s t h a t p a r a g r a p h r e l a t e s t o t h o s e o f f e n c e s , i n t h e c a s e where t h e a l l e g e d o f f e n d e r i s p r e s e n t i n i t s t e r r i t o r y and i t d o e s n o t e x t r a d i t e him p u r s u a n t t o A r t i c l e 8 t o t h e S t a t e mentioned i n paragraph l ( a ) of t h i s Article."
4)
4:84 The Committee c o n s i d e r s t h e t e x t s e t f o r t h i n p a r a g r a p h 4 : 8 3 above t o b e t h e f i n a l d r a f t r e a d y f o r p r e s e n t a t i o n t o S t a t e s u n d e r t h e terms o f Assembly R e s o l u t i o n A7-6 and p r e s e n t s i t t o t h e . C o u n c i 1 f o r c o n s i d e r a t i o n and a c t i o n u n d e r t h e terms of t h a t R e s o l u t i o n . The Committee recommends t o t h e C o u n c i l t o convene a n i n t e r n a t i o n a l c o n f e r e n c e o f p l e n i p o t e n t i a r i e s t o c o n s i d e r t h e d r a f t w i t h a view t o i t s a d o p t i o n a s soon a s p o s s i b l e . 4:85 The Committee wished t o r e c o r d i t s deep g r a t i t u d e t o t h e Chairman o f t h e Working Group, Mr. P.H. K i r s c h (Canada) and t o t h e members o f t h e Working Group t h r o u g h whose e f f o r t t h e work o f t h e 2 6 t h S e s s i o n o f t h e L e g a l Committee was s u c c e s s f u l l y advanced. The Committee a l s o e x p r e s s e d i t s w a r m t h a n k s and a p p r e c i a t i o n t o M s . I.E. Howie (TJnited S t a t e s of America) who s e r v e d as Chairman of t h e S p e c i a l Sub-Committee, as w e l l a s t o D r . R.D. van D a m (Kingdom o f t h e N e t h e r l a n d s ) who completed a p i o n e e r i n g work as R a p p o r t e u r .
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- 175 R e p o r t o n Agenda Items 3 , 5, 6 , 7 and 8 x:l The Committee f o l l o w e d t h e i n s t r u c t i o n s o f t h e C o u n c i l t h a t Agenda I t e m 4 was t h e main i t e m o f t h e 2 6 t h S e s s i o n o f t h e L e g a l Committee. The Committee d e c i d e d n o t t o a d d r e s s any o t h e r agenda i t e m b e f o r e t h e d i s c u s s i o n on Agenda Item 4 was completed and t h e r e p o r t t h e r e o n a p p r o v e d . C o n s e q u e n t l y , s i n c e t h e d i s c u s s i o n o n Agenda I t e m 4 t e r m i n a t e d only x:2 on 1 2 May 1987, i t was n o t p r a c t i c a b l e f o r t h e L e g a l Committee t o a d d r e s s Agenda I t e m 3: "Review of t h e General Work Programme o f t h e L e g a l Committee"; Agenda I t e m 5: " C o n s i d e r a t i o n o f t h e Report o f t h e R a p p o r t e u r on ' U n i t e d N a t i o n s Convention on t h e Law o f t h e Sea I m p l i c a t i o n s , i f a n y , f o r the a p p l i c a t i o n o f t h e Chicago C o n v e n t i o n , i t s Annexes and o t h e r i n t e r n a t i o n a l a i r law i n s t r u m e n t s ' " ; Agenda I t e m 6 : " C o n s i d e r a t i o n o f t h e R e p o r t of t h e R a p p o r t e u r o n ' L i a b i l i t y o f A i r T r a f f i c C o n t r o l A g e n c i e s ' " ; Agenda Item 7 : "Review of t h e R u l e s o f P r o c e d u r e o f t h e L e g a l Committee (DOC 7669-LC/139/3)It and Agenda I t e m 8: "Date, p l a c e and agenda o f t h e 2 7 t h S e s s i o n of t h e L e g a l Committee". However, t h e f o l l o w i n g documents r e l a t i n g t o Agenda I t e m 3 were p r e s e n t e d t o t h e S e s s i o n o f t h e Committee: LC/26-WP/3-1 p r e s e n t e d by t h e D e l e g a t i o n o f P e r u and Co-sponsored by t h e D e l e g a t i o n s o f B o l i v i a , Cuba, C h i l e and Ecuador p r o p o s i n g work o n t h e l e g a l a s p e c t s r e l a t i n g t o s u p p r e s s i o n o f t h e i l l i c i t t r a n s p o r t o f n a r c o t i c s and p s y c h o t r o p i c s u b s t a n c e s i n v o l v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n ; LC/26-WP/3-2 p r e s e n t e d by t h e D e l e g a t i o n o f Cuba and Co-sponsored by . t h e D e l e g a t i o n o f P e r u p r o p o s i n g work on t h e s u b j e c t " D e l i b e r a t e u s e o f c i v i l a i r c r a f t f o r p u r p o s e s i n c o n s i s t e n t w i t h t h e aims of t h e Chicago Convention". F u r t h e r m o r e , t h e D e l e g a t i o n of G r e e c e p r e s e n t e d a p a p e r (LC/26-kT/5-h2) r e l a t i n g t o t h e s u b j e c t o f t h e UN Convention on t h e Law o f t h e Sea. None o f t h e s e p a p e r s was c o n s i d e r e d by t h e Committee.
x:3 The work programme o f t h e Legal Committee had b e e n t h o r o u g h l y d i s c u s s e d by t h e L e g a l Commission of t h e 2 6 t h S e s s i o n o f t h e I C A 0 Assembly i n October 1986. The views e x p r e s s e d a t t h a t Assembly and d e c i s i o n s t a k e n t h e r e b y , t o g e t h e r w i t h t h e p r o p o s a l s p r e s e n t e d by some D e l e g a t i o n s t o t h e 2 6 t h S e s s i o n of t h e L e g a l Committee ( s e e p a r a g r a p h x:2 a b o v e ) would form a s u f f i c i e n t b a s i c f o r t h e C o u n c i l t o a p p r o v e , i n due c o u r s e , t h e G e n e r a l Work P r o g r a m e o f t h e Committee and t h e p r i o r i t i e s w i t h i n t h a t programme. T h e r e f o r e , i t was hoped t h a t i n d u e c o u r s e t h e C o u n c i l w i l l t a k e a d e c i s i o n on t h e review o f t h e G e n e r a l Work Programme o f t h e L e g a l Committee (Agenda I t e m . 3 ) a s w e l l a s on t h e s p e c i f i c p o i n t s t h e r e o n , i n c l u d i n g i t e m s c o v e r e d by Agenda I t e m s 5 and 6 of t h e 2 6 t h S e s s i o n of t h e L e g a l Committee. With r e s p e c t t o Agenda I t e m 7 , "Review of t h e R u l e s o f P r o c e d u r e o f t h e Legal Committee", t h e Committee n o t e d t h a t i n LC/26-WP/7 REVISED no p r o p o s a l was made f o r any amendment of t h e R u l e s ; t h e S e c r e t a r i a t drew t o t h e a t t e n t i o n of t h e Committee o n l y some c o r r e c t i o n s of a n e d i t o r i a l n a t u r e t o b e i n t r o d u c e d i n t h e new e d i t i o n o f Doc 7669-LC/139/3 and i t was b e l i e v e d t h a t such e d i t o r i a l c o r r e c t i o n s s h o u l d be made u n d e r t h e a u t h o r i t y o f t h e Secretary General. x:5 With r e s p e c t t o Agenda I t e m 8 , "Date, p l a c e and agenda o f t h e 2 7 t h S e s s i o n o f t h e L e g a l Committee", t h e Committee b e l i e v e d t h a t a f t e r c o n s i d e r a t i o n of t h e G e n e r a l Work Programme o f t h e L e g a l Committee and a f t e r t h e D i p l o m a t i c C o n f e r e n c e on t h e new i n s t r u m e n t f o r t h e s u p p r e s s i o n o f u n l a w f u l a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n t h e C o u n c i l w i l l be i n t h e b e s t p o s i t i o n t o d e t e r m i n e t h e s u i t a b l e d a t e , p l a c e and agenda of t h e 2 7 t h S e s s i o n o f t h e L e g a l Committee. Copyright International Civil Aviation Organization
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- 177A t t ac hmen t A
AGENDA
FOR THE 26TH SESSION OF THE LEGAL COMMITTEE
I t e m 1: I t e m 2:
Adoption of t h e F i n a l Agenda of t h e S e s s i o n Report of t h e S e c r e t a r i a t Review o f t h e G e n e r a l Work Programme o f t h e L e g a l Committee Development of a n I n s t r u m e n t f o r t h e S u p p r e s s i o n of Unlawful Acts o f Violence a t A i r p o r t s Serving I n t e r n a t i o n a l C i v i l A v i a t i o n C o n s i d e r a t i o n o f t h e Report of t h e R a p p o r t e u r on "United N a t i o n s Convention on t h e Law of t h e Sea - I m p l i c a t i o n s , i f a n y , f o r t h e a m l i c a t i o n o f t h e Chicaeo Convention. i t s Annexes and o t h e r i n t e r n a t i o n a l a i r law i n s t r u m e n t s " C o n s i d e r a t i o n of t h e Report o f t h e R a p p o r t e u r on " L i a b i l i t y of A i r T r a f f i c C o n t r o l Agencies" Review o f t h e R u l e s of P r o c e d u r e o f t h e L e g a l Committee (DOC 7669-LC/139/3) D a t e , p l a c e and agenda o f t h e 2 7 t h S e s s i o n of t h e L e g a l Committee Report on work done a t t h e S e s s i o n
Item 3 : Item 4 :
Item 5:
Item 6 :
Item 7 :
Iter! 8:
Item 9:
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- 179Attachment E
LIST OF DOCUMENTS
Working 'Paper
LC / 26 -WP
Subject
P r o v i s i o n a l Agenda Report o f t h e S e c r e t a r i a t Review of t h e G e n e r a l Work Programme of t h e Committee
3 -1
3-2
Work Programme o f t h e L e g a l Committee o f

ICA0
I n c l u s i o n of t h e s u b j e c t "The d e i i b e r a t e u s e of c i v i l a i r c r a f t f o r p u r p o s e s i n c o n s i s t e n t w i t h t h e aims of t h e Convention on I n t e r n a t i o n a l C i v i l A v i a t i o n " Development o f a n I n s t r u m e n t f o r t h e S u p p r e s s i o n of Unlawful A c t s o f V i o l e n c e a t A i r p o r t s Serving I n t e r n a t i o n a l C i v i l Aviation ( I n t r o d u c t o r y Note) Comment s o f IFALPA Comen t s o f IATA Comments o f I s r a e l Comments of t h e Fed. Rep. of Germany P r e s e n t e d by t h e D e l e g a t i o n o f t h e Union of Soviet S o c i a l i s t Republics Comments o f t h e Kingdom o f t h e N e t h e r l a n d s Comments of Greece Comments o f Venezuela Comments of A u s t r a l i a Comments o f t h e USSR Comments of Peru Proposal of Spain Comments o f F r a n c e P r o p o s a l of Japan Comments of Cuba Comments o f Egypt Comments o f S w i t z e r l a n d Comments o f Poland Comments of Kenya Comments of t h e United Kingdom D r a f t t e x t of A r t i c l e 1 b i s p r e s e n t e d by t h e Chairman o f t h e Working Group
4-1 4-2 4-3 4-4 4-5

4 -6 4 -7 4-8 4-9
4-1 O 4-1 1 4-1 2 4-13 4-1 4 4-1 5 4-1 6 4-17 4-1 8 4-1 9 4-20 4-21
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- 180Attachment B Working Paper

W LC126 - P I
4-2 2 4-23
Sub iect Comments of the Kingdom of the Net her 1 s and Texts presented by the Chairman of the Working Group Consideration of the Report o f the Rapporteur on "United Nations Convention on the Law of the Sea - Implications, if any, f o r the application of the Chicago Convention, its Annexes and other international air law instruments" (Introductory Note)
LOS
5-1 5-2 5 -3 5 -4 5-5 5-6 5-7 5-8 5 -9
Secretariat Study
Comments of Argent ina Comments of Barbados Comments of Brazil Comments of Canada Comments of Chile Comments of Czechoslovakia Comments of Denmark Comments o f Egypt 5-1 O Comments of Finland 5-1 1 Comments o f France 5-1 2 Comments o f the Fed. Rep. of Germany 5-13 Comments of Greece 5-1 4 Comments of Guatemala 5-1 5 Comments of Hungary 5-1 6 Comments of Indonesia 5-17 Comments of Ireland 5-18 & Addendum Comments of Italy 5-1 9 Comments of Lebanon 5-20 Comments of Mauritius 5-21 Comments of Mexico 5-22 Comments o f the Kingdom of the Netherlands 5-23 Comments of Norway 5-24 Comments of Pakistan 5-25 Comments of Papua New Guinea 5-26 Comments of the Philippines 5-27 Comments o f Portugal 5-28 Comments of Seychelles 5-29 Comments of Singapore 5-30 Comments of Sweden 5-3 1 Comments of Switzerland 5-3 2 Comments of Turkey
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- 181 Attachment E
Working Paper LC / 26 -WP /

5-33 5-34 5-3 5 5-36 5-37 5-38 5-3 9 5-40 5-41 5-42 6
Sub iec t Comments Comments Comments Comments Comments Comments Comments Comments LOS
of Uganda of the USSR o f the United Kingdom of the United States o f Uruguay of Vanuatu o f IATA of IFALPA
by the Rapporteur
- Report
Comments of Greece consideration of the Report of the Rapporteur on "Liability of Air Traffic Contro 1 Agencies " ATC
6 -I
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Secretariat Study
6-2 6 -3 6 -4 6 -5 6 -6 6-7 6 -8 6 -9 6-10 6-1 1 6-1 2 6-13 6-14 6-1 5 6-16 6-17 6-1 8 6-19 6-20 6-21 6-22 6-23 6 -24 6-25 6 -26 6-27 6-28
Comments of Argentina Comments of Austria Comment s o f Barbados Comments of Belgium Comments of Brazil Comments o f Canada Comments of Chile Comments o f Cyprus Comments of Denmark Comments o f Egypt Comments of Ethiopia Comments of Finland Comments of the Fed. Rep. of Germany Comments of Greece Comments of Guatemala Comments of Hungary Comments of Ireland Comments of Israel Comments o f Italy Comments o f Kenya Comments of Lebanon Comments o f Maldives Comments o f Mauritius Comments of the Kingdom of the Netherlands Comments of Norway Comments of Pakistan Comments of Papua New Guinea
Not for Resale
- 182Attachment B Subject 6-29 Comments Comments Comments Comments Comments Comments Comments Comments Comments Comments Comments Comments Comments ATC
of of of of of of of of of of of of of
Working Paper LC/ 26-wP /
6-30
6-31 6-32 6-33 6-34 6-35 6-36 6-37
6-38
6-39 6-40 6-41
Rwanda Singapore Sweden Switzerland the United Kingdom the United States o f America Vanuatu Zambia ACAC IATA IFALPA IFATCA the United Nations by the Rapporteur
6-42 7 Revised
8 9
- Report
Review o f the Rules of Procedure o f the Legal Committee (Doc 7669-LC/139/3) Date, Place and Agenda o f the 27th Session o f the Committee Report on work done at the Session
WORKING GROUP LC 26-WG Text presented by the Chairman (Article 1 bis) Text presented by the Delegation of Greece (Provision to be inserted in the Preamble) Text presented by the Chairman (Article 1 bis and Preamble)
Not for Resale
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183
Attachment C
LIST OF PARTICIPANTS
ALGERIA :
Abada, A. Haneche, M. P e r u c c h i , H.A. A i n c h i l , O.A. B o c a l a n d r o , R .L. Busto8 F i e r r o , R. DOZO, F.E. S a l v a t , M.C. Tomas, J .P. S t r a n g , H.D. B i l l i n g s l e y , A.J. W i n k l e r , H. Payne, C.S. V e r s t a p p e n , J. Fob e , J. -M. A p a r i c i o , M.R. A r t o , J.A. P e r e i r a , G. B i t t e n c o u r t , J.
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ARGENTINA :
AUSTRALIA :
AUSTRIA : BARBADOS : BELGIll : BOLIVIA :

BRAZIL :
BRUNEI DARUSSALAM :
Haji L a t i p , H.K.
T e p a v i t c h a r o v , C. Ivanov, I . V . K i r s c h , P. F i o r i t a , D. F a u t e u x , P. Lauzon, G.H. . S t o c k f i s h , B.E. S h a f f e r , B. E y z a g u i r r e , R. Rodriguez , P. Ansted, J. Dupouy , J. G i l l e t , J. Zurob, R.
BULGARIA :
CANADA :
CHILE :
CHINA :
Qian Zemin Xi Zongze

Xue Hangin
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- 184Attachment C
COLOMBIA : COSTA RICA:
Rodriguez P e r e z , L. Wedel, D . Kon, I . Tahou, S.R. Arango, A .J. Barcelo, R.A. Vodicka, O. Kozucnik, R . Z b i r a l o v a , J. Bahamis h , A .A. Abdulkader, M. Dambaek, M. Saenz-Merizalde, Massoud, C . H u s s e i n , H. Gebreegziabher, Y. C.E.
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CTE D I V O I R E :
CUBA :
CZECHOSLOVAKIA :
DEMOCRATIC YEMEN :
DENMARK : ECUADOR :
EGYPT :
ETHIOPIA :
FINLAND :
Met clamp i , V . -M. K a n t o l a , A.V.

d e l a V e r p i l l i r e , C. C h a n e t , C.S. B a r b i n , M. Bugnet, J . 4 . R a m i s , M. R o e b b e r t , M. Graumann, H . Economidec , C. K o r o n t z i c , G. Ulloa Dethuin, I . Jereb, G. J h a , B.N. B h a t t , S. M a l i k , S.
FRANC E :
GERMANY, FEDERAL REPUBLIC OF:

GREECE :
HONDURAS : HUNGARY :
INDIA :
Not for Resale
- 185 Attachment C INDONESIA : Wasito S o e b a g i j o Soemodihardjo Mart ono Cahyo Adi Soed j arwo Soeparno, U. G o l r o u n i a , A.A. Najaf i-Tavani, C .A. Das t m a l c h i , A. Manafi Dero, S . R . Rahimian, H. Taha, T. H a r p e r , M. S a b e l , R. A l s t e r , J.P. Shohamy, S. Badash, G. Diav, A . Naor, G. Oren, E. Sciolla-Lagrange, A. F e r r a r i - B r a v o , L. C h i a v a r e l l i , E. B a r i l e , G. G a i a n i , M. P i e r o n i , M. P o l i m e n i , G. R i n a l d i B a c c e l l i , G. R a t t r a y , K.O. Mukai, M . K i f u j i , S. F u j i t a , T. Matsumoto, T . T e r a n i s h i , T. Kubota, Y . Nagao , M. Ameyo, D.K. G i t h a i g a , S .W. Abwawo, A.E. B o u r e s l i , D. A r s a n i o s , Y.
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I R A N , ISLAMIC REPUBLIC OF:
IRAQ :
IRELAND :
I SRAEL :
ITALY:
JAMAICA :
JAPAN :
KENYA:
KUWAIT :
LEBANON :
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- 186Attachment C
LIBYAN ARAB JAMAHIRIYA :
E l G a b s i , A.A. E l - M i s i l a t i , A. Ghaddah, M.R. Uhida, H.M.

Loaeza T . , E. C a r v a j a l , M. v a n Dam, R.D. S c h u t t e , J.E. Patyn, A. van Den Nieuwenhuyzen, W.J.M. van L i e s h o u t , J.W.M. Nordeng, T.V. Ahmad, S. Anwar, S.M. P i c a r d i , F .H. Garland , J. C o n t r e r a s , A. d e l a F u e n t e , M. Ferradas P l a t a s , J. Ramirez Roman, C.M. S a l a z a r , D .M. A l v a r a d o , F. Lopez, R . Z y l i c z , M. Berezowski, M.A.. Nowodworski , A. E s p i n o l a , S.A.A. S a n t o s P a t o , A.M. Sitima, J.C.B. R o d r i g u e s Zincke' Dos R e i s , A.M. C h o i , N.C. Kim, S . K . Han, Y.K. Dabbagh, H . Al-Attas, K. Rajkhan, S. F a l l , A.K. D i a l l o , Y. Diop, C.M.
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MEXICO :
NETHERLANDS, KINGDOM O THE: F
NORWAY : PAKISTAN :
PNM : AA A PERU :
POLAND :
PORTUGAL :
REPUBLIC OF KOREA:
SAUDI ARABIA:
SENEGAL :
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- 187Attachment C
SINGAPORE :
Tan, S.C. C a s t e j o n , B. Meson, L. Berg, U.G. Brusen, V . M . Hellners, K . V . Larsson, B.E. Panchard, G. Rochat, P.
SPAIN :
SWEDEN :
SWITZERLAND :
SYRIAN ARAB REPUBLIC:
A l Baaly, B. A l Youssef, M.
Chinda, B. Kongpaeng , T. P i p u t v a t , S. T a n t i r u j a n a n o n t , P.
THAILAND :
TUNISIA:
TURKEY :
El H i c h e r i , A .
Targay, K . Ryjenkov, B.A. Goloubov, G .D. Novossiltsew, M.M. Podberezny , V .A. O a t e s , L. Kean, A . Neal, F . A . Kaunda, G.H. Mwakisu, B . K .
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U N I O N OF SOVIET SOCIALIST REPUBLICS:
UNITED KINGDOM:
UNITED REPUBLIC OF TANZANIA :
UNITED STATES :
Howie, I.E. Byerly, J . R .

M a i l l e t t , L.E. Casey, J . L .
VENEZUELA :
Vera, L. Yepez, R. Fraino, C. Kaufman R.,
A.
YEMEN :
ZAIRE :
A 1-Nas h r i, A .
Zambali, R. Likolo, B.
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- 188 Attachment C
OBSERVERS
GERMAN DEMOCRATIC REPUBLIC (THE): Damm, G. Boehme, H. Mudrack, J. Graser, A.
AIRPORT ASSOCIATIONS COORDINATING COUNCIL (AACC):
INTERNATIONAL AIR TRANSPORT ASSOCIATION (IATA): Larose-Aubry, H. Donohue, A. Weber, L. INTERNATIONAL FEDERATION OF AIR LINE PILOTS ASSOCIATIONS (IFALPA): Kane, R.F. Keenan, J.T. van Wijk, A.A. Matte, N. Fitzgerald, Q.C., G.F. Magdelnat, J.-L.
INTERNATIONAL LAW ASSOCIATION (ILA):
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- 189-
P A R T IV
Not for Resale
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- 191 --`,,```,,,,````-`-`,,`,,`,`,,`---
V I A Doc No. 1 1/12/87
I n t e r n a t i o n a l Conference on A i r Law (Montreal, 9
- 24
February 1988)
P r o v i s i o n a l Agenda 1.
2.
Opening of t h e Conference by t h e P r e s i d e n t o f t h e I C A 0 Council Adoption of t h e Agenda Adoption of t h e Rules o f Procedure Establishment of t h e C r e d e n t i a l s Committee E l e c t i o n of t h e P r e s i d e n t of t h e Conference E l e c t i o n of t h e Vice-presidents of t h e Conference Report of t h e C r e d e n t i a l s Committee O r g a n i z a t i o n of work: a) Procedure f o r c o n s i d e r a t i o n of t h e d r a f t i n s t r u m e n t on t h e s u p p r e s s i o n of unlawful a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g international c i v i l aviation Establishment of t h e Commission of t h e Whole and Committees as nec e s s a r y
3.
4.
5.
6.
7.
8.
b) 9.
C o n s i d e r a t i o n of t h e d r a f t instrument
10. Adoption of t h e instrument and of any R e s o l u t i o n s

11. Adoption of t h e F i n a l Act of t h e Conference
12, S i g n a t u r e :
- of
- of
t h e F i n a l Act t h e instrument
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- 193 V I A Doc No. 2
1/12/37

(Montreal, 9
2 4 F e b r u a r y 1988)
PIEDVISIONAL IaTLES O P I I O C ~ F
Rule 1
(Canposition of the Conference)
The Conference s h a l l be composed of t h e Representatives of the States (1) i n v i t e d by the Council of ICAO t o attend t h e Conference.
(2)
Representatives may be accompanied by aternates and advisers. International organizations invited by t h e Council of ICAO t o attend (Credentials and Credentials Committee)
(3)
Rule 2
t h e Conference may be represented by observers.
The credentials of Representatives of t h e S t a t e s , t h e i r a l t e r n a t e s and (1) advisers and of observers s h a l l be submitted t o .the Secretary General i f possible not l a t e r than twenty-four hours a f t e r t h e opening of t h e Conference. The c r e d e n t i a l s s h a l l be issued e i t h e r by t h e Head of the State o r Government, o r by t h e Minister f o r Foreign A f f a i r s . No person s h a l l be t h e Representative of mo= than one S t a t e .
A c r e d e n t i a l s Committee s h a l l be established a t t h e beginning of t h e (2) Conference. It s h a l l consist of f i v e members =presenting five S t a t e s n m i n a t e d by t h e President of the Conference.
The Credentials Comittee s h a l l e l e c t i t s own Chairman and s h a l l (3) examine t h e c r e d e n t i a l s of Delegates and report t o t h e Conference without delay. Rule 3 ( E l i g i b i l i t y f o r p a r t i c i p a t i o n i n meetings)
Any members of a Delegation s h a l l be e n t i t l e d , pending the presentation of a report by t h e Credentials Committee and Conference a c t i o n thereon, t o a t t e n d meetings and t o p a r t i c i p a t e i n them, subject, harever, t o the limits set f o r t h i n these Rules. The Conference may b a r from any f u r t h e r p a r t i n i t s a c t i v i t i e s any member of a Delegation whose c r e d e n t i a l s it f i n d s t o be insufficient.
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V I A Doc No. 2
194 -
w e 4
(Officers)
m e Conference s h a l l e l e c t i t s President. U n t i l such e l e c t i o n , t h e (1) President o f the ICA0 Council o r , i n h i s absence, h i s nominee, s h a l l a c t as President of t h e Conference. The Conference s h a l l e l e c t four Vice-Presidents and t h e Chairman of (2) t h e Commissions r e f e r r e d t o i n Rule 5. The Conference s h a l l have a Secretary General who s h a l l be t h e Secretary (3) General of t h e I n t e r n a t i o n a l C i v i l Aviation Organization o r h i s nominee. Rule
(Commissions, Committees and Working Groups)
The Conference s h a l l e s t a b l i s h such Commissions open t o a l l deiegations (1) o r Committees o f limited membership as it may consider t o be necessary o r desirable
A Commission o r a Cammittee s h a l l e s t a b l i s h such Working Groups as it (2) may consider t o be necessary o r d e s i r a b l e . Each C o m i t t e e o r Working Group s h a l l e l e c t i t s own Chaiman.
Rule 6
(Public and p r i v a t e meetings)
Meetings of t h e Conference s h a l l be held i n p u b l i c unless t h e Conference decides t h a t any of i t s meetings s h a l l be held i n p r i v a t e . Meetings of t h e Commissions, Committees and Working Groups s h a l l not be open t o t h e public except by decision of t h e Commissions, Committees o r Working Groups concerned. Rule 7 ( P a r t i c i p a t i o n of observers)
Observers may p a r t i c i p a t e without vote i n t h e d e l i b e r a t i o n s of t h e () 1 Conference, when i t s meetings EUX not held i n p r i v a t e . With respect t o p r i v a t e meetings, individual observers may be i n v i t e d by t h e Conference t o a t t e n d and t o be heard. Observers may a t t e n d and be heard by t h e Cammissions, Cammittees and (2) Working Groups if i n v i t e d by t h e body concerned. Rule 8 (Quonun)
A m a j o r i t y of t h e S t a t e s represented a t t h e Conference and whose (1) Representatives have not n o t i f i e d t h e Secretary General of t h e i r departure s h a l l c o n s t i t u t e a quorum.
The Conference s h a l l determine t h e q u o m f o r t h e Commissions and (2) Committees i f , i n any case, it i s considered necessary t h a t a quorum be e s t a b l i s h e d f o r such bodies.
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- 195 VIA Doc No. 2
,We 9
(Powers of t h e presiding Officer)
The presiding Officer of the Conference, a Commission, a Committee o r a Working Group s h a l l declare the opening and closing of each meeting, d i r e c t the discussion, ensure observance of these rules, accord t h e r i g h t t o speak, put questions and announce decisions. H s h i l rue on points of order and e subject t o these Rules, s h a l l have complete control of t h e proceedings of the body concerned and over the maintenance o f order a t i t s meetings.
m e 1 (speakers) 0 The presiding Officer s h a l l c a l l upon speakers i n the order i n vhich (1) t h e y have expressed t h e i r desire t o speak; he may c a l 1 a speaker t o o r d e r if h i s observations are not relevant t o the sub.ject under discussion. Generally, no delegation should be c a l l e d t o speak a second time on (2) any question except f o r c l a r i f i c a t i o n , u n t i l all o t h e r delegations desiring t o speak have had an o p p o r t u n i t y t o do so.
'
Rule 1 (Points of Order) 1

During t h e discussion on any matter, and notwithstanding the provisions of Rule 10, a Representative of a State may a t any time raise a point of order, and t h e point of order s h a l l be immediately decided by t h e presiding o f f i c e r . Any Representative o f a S t a t e m a y appeal against t h e n i l i n g of t h e presiding o f f i c e r and any discussion on t h e point of order shall be governed by t h e procedure stated i n Rule 14. The ruling of t h e presiding o f f i c e r s h a l l stand unless over-ruled by a majority of votes c a s t . A Rzpresentative of a S t a t e speaking on a point of order m a y speak only on t h i s point, and may not speak on t h e substance of t h e matter under discussion before the point was raised.
Rule 1 2
W e 13
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(3) A t meetings o f t h e Conference, t h e Chairman of a Commission o r 2 Committee may be accorded precedence f o r t h e purpose of explaining t h e conclusions arrived a t by the body concerned. I n Commission o r Committee meetings, a similar pEcedence may be given t o t h e Chaiman of a Woyking Group.
(Time l i m i t of Speeches)
A presiding Officer may l i m i t the time allowed t o each speaker, unless the body concerned decides otherwise.
(Motions and Amendments)
A motion o r amendment s h a l l not be discussed u n t i l it has been seconded. (1) Motions and amendments may be presented and seconded o n l y by Representatives of S t a t e s . However, observers may make a motion o r amendment provided t h a t such motion o r amendment must be seconded by the Representatives of two States.
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- 196 V I A Doc No. 2
A motion s h a l l not be withdrawn when an aaendment t o t h e motion is (2) under discussion o r has been adopted.
Rule 14
(Procedural Motions)
Subject t o t h e pmvisions of RLe 13(1) any Representative of a State may move a t any time the suspension o r adjournment of the meeting, t h e adjournment of t h e debate on any question, t h e deferment of discussion of an i t e m , o r t h e closure of t h e debate on an item. A f t e r such a motion has been made and explained by i t s propoaer, only one speaker s h a l l normally be allowed t o speak i n opposition t o it, and no further speeches s h a l l be made i n i t s support before a vote i s taken. Additional speeches on such motion may be allowed a t t h e d i s c r e t i o n of t h e presiding o f f i c e r , who s h a l l decide t h e p r i o r i t y of recognition.
Rule i5
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(Order of Procedural Motions)
The following motions s h a l l have p r i o r i t y over all o t h e r motions, and s h a l l be taken i n t h e following orders:
Rule
16 (Reconsideration of Proposals)
Permission t o speak on a motion t o reopen a debate already ompleted by a vote on a given question s h a l l normslly be accorded only t o t h e proposer and t o one speaker i n opposition, a f t e r which it s h a l l be immediately put t o vote. Additional speeches on such a motion may be allowed a t t h e d i s c r e t i o n of t h e presiding Officer, who s h a l l decide t h e p r i o r i t y of recognition. Speeches on a motion t o reopen s h a l l be l i m i t e d i n content t o matters bearing d i r e c t l y on t h e j u s t i f i c a t i o n f o r reopening. Such reopening s h a l l require a two-thirds majority o f the representatives present and voting.
a)
b)
c) d) e)
t o suspend t h e meeting; t o adjourn t h e meeting; t o adjourn the debate on an i t e m ; t o defer the debate on an i t e m ; f o r closure of the debate on an item.
Rule i7
(Discussions i n Working Groups)
Working Groups s h a l l conduct t h e i r d e l i b e r a t i o n s informally and 1 Rules 1 , 12, 13, 14, i5 and 16 s h a i l not apply t o them. Rule 18 (Voting Rights)
Each State duly represented a t t h e Conference s h d l have one vote at (1) meetings of t h e Conference.
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VIA Doc No. 2
s h a l l have one vote a t meetings of such bodies.
(2)
Each S t a t e represented i n a Commission, Committee o r Working Group Observers s h a l l not be e n t i t l e d t o vcte.
(3)
9 Fuie i (Voting of presiding O f f i ce r )

Subject t o t h e provisions o f Rule 18, t h e presiding Officer of t h e Conference, Commission, Committee o r Working Group s h a l l have t h e r i g h t t o vote on b e h a l f of h i s 'State. Rule 20 (Majority required)
Decisions of t h e Conference on all matters of substance s h a l l be taken () 1 by a two-thirds majority of t h e Representatives present and voting. Decisions of the Conference on matters of procedure s h a l l be taken by (2) a majority of t h e Representatives present and voting.
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If t h e question a r i s e s whether a matter i s one of procedure o r of (3) substance, t h e presiding O f f i c e r s h a l l r u l e on t h e question. A appeal against n t h i s r u l i n g s h a U immediately be put t o t h e vote and t h e presiding O f f i c e r ' s r u l i n g shai.1 stand unless the appeal i s approved by a majority o f . t h e Representatives present and voting.
(4) For t h e purpose of these d e s , t h e phrase "Representatives present and voting" means Representatives present and c a s t i n g an affirmative o r negative vote. Representatives who a b s t a i n f r m voting s h a l l be considered as not voting.
Rule 21
(Method of Voting) Voting s h a l l normally be by voice, by show of hands, o r by standing.
In meetings of t h e Conference t h e r e shall be a r o l l - c a l l i f requested by t h e

Representatives of two S t a t e s . The vote o r a b s t e n t i o n o f each S t a t e p a r t i c i p a t i n g i n a r o l l - c a l l shall be recorded i n t h e minutes.
Rule 22
(Division o f Motions)
On request of any Representative of a State and unless t h e Conference decides otherwise, p a r t s of a motion s h a l l be voted on s e p a r a t e l y . The - r e s u l t i n g motion s h a l l then be put t o a f i n a l vote i n i t s e n t i r e t y .
Rule 23
(Voting on Amendments)
Any amendment t o a motion s h a l l be voted on before vote i s taken on t h e motion. When two o r more amendments are moved t o a motion, t h e vote should be taken on them i n t h e i r order of remoteness frum the o r i g i n a l motion,
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commencing w i t h t h e most remote. The p r e s i d h g Officer s h a l l determine whether a proposed amendment i s SO r e l a t e d t o the motion as t o c o n s t i t u t e a proper amendment t h e r e t o , o r whether it must be considered as an a l t e r n a t i v e o r s u b s t i t u t e motion. Rule 24 (Voting on Alternative o r Substitute Motions)
Aternative o r s u b s t i t u t e motions, s h a l l , unless t h e meeting otherwise decides, be p7it t o vote i n t h e order i n which they are presented, and after t h e d i s p o s a i of t h e origin11 motion t o which they are a l t e r n a t i v e o r i n s u b s t i t u t i o n . The presiding Officer s h a l l decide whether it i s necessary t o put such a t e r n a t i v e o r s u b s t i t u t e motions t o vote i n tlie l i g h t of t h e vote on t h e o r i g i n a l motions and any amendments t h e r e t o . This r u l i n g may be reversed by a majority o f votes c a s t . Rule 25 (Tie vote)
In t h e event o f a t i e vote, a second vote on t h e motion concerned s h a l l be taken a t t h e next meeting, unless t h e Conference, Commission, C s m i t t e e o r Working Group decides t h a t such second vote be taken during t h e meeting a t which t h e t i e vote took place. Unless t h e r e i s a majority i n favour of t h e inotion . on tnis second vote, it s h a l l be .considered l o s t .
Rule 26
(Proceedings o f Commissions, Committees and Working Groups) Subject t o t h e provisions of Rule 17 t h e provisions contained i n
Rules 10 t o 25 above s h a l l be applicable, mutatis mutandis, t o t h e proceedings
of Commissions, C a m i t t e e s and Working Groups, except t h a t decisions of such bodies s h a l l be taken by a majority of t h e representatives present and voting, but not i n t h e case of a reconsideration of proposals o r amendments i n which t h e majority required s h a l l be t h a t e s t a b l i s h e d by Rule 16.
Rule 27 (Languages)
(i) Documents of t h e Conference s h a l l be prepared and c i r c u l a t e d i n the English, French, Russian and Spanish languages.
The English, French, Russian and Spanish languages s h a l l be used i n (2) t h e d e l i b e r a t i o n s of t h e Conference, Cammissions, Committees and Working Groups. Speeches made i n any of t h e four languages shall be i n t e r p r e t e d i n t o t h e o t h e r t h r e e languages, except where such i n t e r p r e t a t i o n i s dispensed w i t h by .unanimous consent. Any representative may make a speech i n a language o t h e r than t h e (3) o f f i c i a i languages. in t h i s case he s h a l l himself provide f o r i n t e r p r e t a t i o n i n t o one of t h e working languages. I n t e r p r e t a t i o n i n t o t h e o t h e r workirig languages by t h e i n t e r p r e t e r s of t h e S e c E t a r i a t may be based on t h e i n t e r p r e t a t i o n given i n t h e f i r s t working language.
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- 199 V I A Doc No. 2
Rule 28
(Records of Proceedings)
Minutes of t h e meetings of the Conference s h a l l be prepared by t h e (1) Secretariat and approved by t h e Conference. Proceedings of ~cm1miSSiOn8, Camittees and Working Groups s h a l l be (2) recorded in euch fom as t h e boy concerned may decide.
Rule 29
(Psiendment of the W e s of Procedure)
These W e s may be amended, or any portion of the r u l e s may be suspended, at any time by a decision of t h e Conference taken by a maJority vote of the
Representatives present and voting.
m 30 (Representative of a State e
- &finition)
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in these Rules, except m e 1, the expression "Representative of a Eftate" s h a l l be deemed t o include any member of t h e delegation of a State.
Not for Resale
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-201 VIA Doc No. 3 1/12/87
I n t e r n a t i o n a l Conference on A i r Law (Montreal, 9
24 February 1988)
D r a f t Pro toco 1 t o Amend t h e Convention

f o r t h e SuDDression of Unlawful A c t s
a g a i n s t t h e S a f e t y of C i v i l A v i a t i o n Signed a t Montreal on 23 September 1971 ( P r e s e n t e d by t h e S e c r e t a r i a t )
The 26th Session of t h e Legal Committee decided t h a t " t h e new instrument should be d r a f t e d i n t h e form of a P r o t o c o l supplementary t o t h e Convention f o r t h e Suppression of Unlawful A c t s a g a i n s t t h e S a f e t y of C i v i l A v i a t i o n signed a t Montreal on 23 September 1971, t o d e a l w i t h unlawful a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n ; such P r o t o c o l would n o t amend t h e b a s i c p r i n c i p l e s of t h a t Convention" (Doc 9502-LC/186, paragraph 4 : 8 2 ) . The a t t a c h e d d r a f t P r o t o c o l has been prepared by t h e S e c r e t a r i a t f o r convenience of r e f e r e n c e and t o f a c i l i t a t e f u r t h e r d i s c u s s i o n s . The p r o v i s i o n s marked by a v e r t i c a l l i n e i n t h e margin reproduce t h e t e x t s approved by t h e Committee f o r i n c l u s i o n i n t o such a P r o t o c o l . The f i n a l p r o v i s i o n s f o l l o w t h e s t a n d a r d p r o v i s i o n s of t h e P r o t o c o l s adopted under t h e a u s p i c e s of ICA0 and a r e c l o s e l y a l i g n e d on t h e f i n a l p r o v i s i o n s of t h e Montreal Convention of 197 1.
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V U Doc N o . 3
Attachment
- 202 ATTACHMENT
DRAFT PROTOCOL
To Amend t h e Convention f o r t h e Suppression of Unlavful A c t s a g a i n s t t h e S a f e t y of C i v i l A v i a t i o n Signed a t Montreal on 23 September 1971

THE GOVERNMENTS UNDERSIGNED
CONSIDERING t h a t unlawful a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n j e o p a r d i z e t h e s a f e t y of persons and p r o p e r t y a t such a i r p o r t s , undermine t h e c o n f i d e n c e of t h e peoples of t h e world i n s a f e t y a t such a i r p o r t s and d i s t u r b t h e s a f e ' a n d o r d e r l y conduct of c i v i l a v i a t i o n f o r a l l S t a t e s ; CONSIDERING t h a t t h e o c c u r r e n c e of such a c t s i s a m a t t e r of g r a v e concern and t h a t , f o r t h e purpose of d e t e r r i n g such a c t s , t h e r e i s an u r g e n t need t o p r o v i d e a p p r o p r i a t e measures f o r punishment of offenders; CONSIDERING t h a t i t i s n e c e s s a r y t o adopt p r o v i s i o n s a d d i t i o n a l t o t h o s e of t h e Convention f o r t h e Suppression of Unlawful A c t s a g a i n s t t h e S a f e t y of C i v i l A v i a t i o n s i g n e d a t Montreal on 23 September 1971, t o d e a l w i t h unlawful a c t s of v i o l e n c e a t a i r p o r t s serving international c i v i l aviation,
HAVE AGREED AS FOLLOWS:

CHAPTER I
A M B ~ ~ n I ITO THE CONVENTION S
Article I
The Convention which t h e p r o v i s i o n s of t h e p r e s e n t Chapter modify i s t h e Convention f o r t h e Suppression of Unlawful A c t s a g a i n s t t h e S a f e t y of C i v i l A v i a t i o n , s i g n e d a t Montreal on 23.September 1971.
A r t i c l e II
( a ) performs an a c t of v i o l e n c e a g a i n s t a p e r s o n a t an
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a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i 1 . a v i a t i o n which Copyright International Civil Aviation Organization c a u s e s o r i s l i k e l y t o cause s e r i o u s i n j u r y o r Provided by IHS under license with ICAO No reproduction or networking permitted without license from IHS Not for Resale I death: o r
- 203 VIA Doc No. 3 Attachment
'
I
I
( b ) d e s t r o y s o r s e r i o u s l y damages t h e f a c i l i t i e s of an a i r p o r t serving international c i v i l aviation o r a i r c r a f t not i n s e r v i c e located thereon o r d i s r u p t s t h e services of t h e a i r p o r t , i f such an a c t endangers o r i s l i k e i y t o endanger s a f e t y a t t h a t a i r p o r t .If
2. Paragraph 2 ( a ) o f - t h e Convention s h a l l be d e l e t e d and r e p l a c e d by t h e f o 1lowing :
"2.
(a)
Any person a l s o commits an o f f e n c e if he: a t t e m p t s t o commit any of t h e o f f e n c e s mentioned i n paragraph 1 o r paragraph 1 of t h i s A r t i c l e ; or."
A r t i c l e III
In A r t i c l e 5, t h e f o l l o w i n g s h a l l be added a s paragraph 2 bis:

"2 - Each C o n t r a c t i n g S t a t e s h a l l l i k e w i s e t a k e such measures as bis. may be n e c e s s a r y t o e s t a b l i s h i t s j u r i s d i c t i o n o v e r t h e o f f e n c e s mentioned i n A r t i c l e 1, paragraph 1 b i s , and i n A r t i c l e 1, paragraph 2, i n s o f a r as t h a t paragraph r e l a t e s t o t h o s e o f f e n c e s , i n t h e c a s e where t h e a l l e g e d o f f e n d e r i s p r e s e n t i n i t s t e r r i t o r y and i t does n o t e x t r a d i t e him pursuant t o A r t i c l e 8 t o t h e S t a t e mentioned i n paragraph l ( a ) of t h i s A r t i c l e . "
A s between t h e P a r t i e s t o t h i s P r o t o c o l , t h e Convention and t h e P r o t o c o l s h a l l be read and i n t e r p r e t e d t o g e t h e r as one s i n g l e instrument and s h a l l be known as t h e Montreal Convention of 1971 a s Amended i n Montreal i n 1988.
U n t i l t h e d a t e on which t h i s P r o t o c o l comes i n t o f o r c e i n accordance with A r t i c l e V I I , i t s h a l l remain open f o r s i g n a t u r e by any S t a t e . Article V I
1.
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CHAPTER II
FINAL PROVISIONS
Article I V
Article V
T h i s P r o t o c o l s h a l l be s u b j e c t t o r a t i f i c a t i o n by t h e s i g n a t o r y S t a t e s .
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- 204 V I A Doc No. 3 Attachment
2 . R a t i f i c a t i o n of t h i s P r o t o c o l by any S t a t e which i s n o t a P a r t y t o t h e Convention s h a l l h a v e ' t h e e f f e c t of a c c e s s i o n t o t h e Convention a s emended by t h i s Protocol. The i n s t r u m e n t s of r a t i f i c a t i o n s h a l l be d e p o s i t e d w i t h t h e Governments of t h e Union of S o v i e t S o c i a l i s t Republics, t h e United Kingdom of Great B r i t a i n and Northen I r e l a n d and t h e United S t a t e s of America, which a r e - h e r e b y d e s i g n a t e d t h e D e p o s i t a r y Governments.
3.
Article VI1
1. As soon a s t e n of t h e s i g n a t o r y S t a t e s have d e p o s i t e d t h e i r i n s t r u m e n t s of r a t i f i c a t i o n of t h i s P r o t o c o l , i t s h a l l come i n t o f o r c e between them on t h e t h i r t i e t h day a f t e r t h e d a t e of t h e d e p o s i t of t h e t e n t h instrument of ratification. I t s h a l l come i n t o f o r c e , f o r each S t a t e which d e p o s i t s i t s instrument of r a t i f i c a t i o n a f t e r t h a t d a t e on t h e t h i r t i e t h day a f t e r i t s d e p o s i t of i t s instrument o f r a t i f i c a t i o n .
2. A s soon a s t h i s P r o t o c o l comes i n t o f o r c e , i t s h a l l be r e g i s t e r e d by t h e D e p o s i t a r y Governments p u r s u a n t t o A r t i c l e 102 of t h e C h a r t e r o f t h e United Nations and p u r s u a n t t o A r t i c l e 83 of t h e Convention ou I n t e r n a t i o n a l C i v i l A v i a t i o n (Chicago, 1 9 4 4 ) .
Article V I 1 1
1. T h i s P r o t o c o l s h a l l , a f t e r i t has come i n t o f o r c e , be open f o r a c c e s s i o n by any non-signatory S t a t e .

2. Accession t o t h i s P r o t o c o l by any S t a t e which i s n o t a P a r t y t o t h e Convention s h a l l have t h e e f f e c t of a c c e s s i o n t o t h e Convention a s amended by t h i s Protocol.
3 . Accession s h a l l be e f f e c t e d by t h e d e p o s i t o f an i n s t r u m e n t of a c c e s s i o n w i t h t h e D e p o s i t a r y Governments and s h a l l t a k e e f f e c t on t h e t h i r t i e t h day a f t e r t,he d e p o s i t . Article IX

1. Any P a r t y t o t h i s P r o t o c o l may denounce t h e P r o t o c o l by n o t i f i c a t i o n a d d r e s s e d t o t h e D e p o s i t a r y Governments.
2. Denunciation s h a l l t a k e e f f e c t : s i x months a f t e r t h e d a t e of r e c e i p t by t h e D e p o s i t a r y Governments o f t h e n o t i f i c a t i o n of d e n u n c i a t i o n .
Article X
1. The D e p o s i t a r y Governments s h a l l g i v e n o t i c e t o a l l S t a t e s P a r t i e s t o t h e Montreal Convention of 1971 o r t o t h a t Convention a s amended by t h i s P r o t o c o l , Copyright International Civil Aviationg n a t o r y and adhering S t a t e s and a l l s i Organization t o all S t a t e s members o f t h e O r g a n i z a t i o n Provided by IHS under license with ICAO No reproduction or networking permitted withoutUnited N a t i o n s : Not for Resale o r of t h e license from IHS
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- 205 -
VIA Doc No. 3 Attachment
( a ) o f t h e d e p o s i t o f any i n s t r u m e n t o f r a t i f i c a t i o n o f , o r a d h e r e n c e t o , t h i s P r o t o c o l and t h e d a t e t h e r e o f , w i t h i n t h i r t y d a y s from t h e d a t e o f t h e d e p o s i t , and

(b) o f t h e r e c e i p t o f any d e n u n c i a t i o n o f t h i s P r o t o c o l and t h e d a t e t h e r e o f , w i t h i n t h i r t y d a y s from t h e d a t e of t h e r e c e i p t .
2 . The D e p o s i t a r y Governments s h a l l a l s o n o t i f y t h e s e S t a t e s o f t h e d a t e on which t h i s P r o t o c o l comes i n t o f o r c e i n a c c o r d a n c e w i t h A r t i c l e V I I .
Article X I
T h i s P r o t o c o l s h a l l b e open f o r s i g n a t u r e a t M o n t r e a l on 1988 by S t a t e s p a r t i c i p a t i n g i n t h e to I n t e r n a t i o n a l C o n f e r e n c e o n A i r Law from 1988. A f t e r 1988, t h e P r o t o c o l s h a l l b e open f o r s i g n a t u r e t o a l l S t a t e s i n Moscow, London and Washington, u n t i l i t comes i n t o f o r c e i n accordance with A r t i c l e V I I .
day o f of t h e y e a r i n four authentic texts in the E n g l i s h , F r e n c h , R u s s i a n and S p a n i s h l a n g u a g e s .
DONE a t M o n t r e a l on t h e One Thousand Nine Hundred and Eighty-Eight
I N WITNESS WHEREOF t h e u n d e r s i g n e d P l e n i p o t e n t i a r i e s , h a v i n g been d u l y a u t h o r i z e d , have s i g n e d t h i s P r o t o c o l i n t h e name o f
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INTERNATIONAL CONFERENCE ON AIR L A W (Montreal, 9
1. The form of the new instrument to be adopted by the International Conference on Air Law in February 1988.
After examining the report of the Sub-committee responsible for the preparation of the new instrument, the Niger would like the text to be drafted in the form of a separate convention, separate from the Montreal Convention for the Suppression of'unlawful Acts against the Safety of Civil Aviation. Firstly, our view takes into account the established fact that most
o f the existing texts relating to the protection of civil aviation have been
prepared in the form of separate conventions. Among 0ther.s there are:.
- The Tokyo Convention of 4 September 1963 on Offences and Certain Other Acts Committed On Board Aircraft. - The Convention of The Hague of 16 December 1970 f o r the Suppression of Unlawful Seizure of Aircraft. - The Montreal Convention of 23 September 1971 for the Suppression of Unlawful Acts against the Safety of Civil Aviation.
It would be more logical for the new text on the Suppression of Unlawful Acts at Airports Serving International Civil Aviation also to be adopted in the form of a separate convention. Secondly, such a solution would have the advantage of not making ratification of the new instrument conditional upon ratification of the Montreal Convention of 1971.
2.
1988 decides that the new instrument should be prepared in the form of a
Protocol amending the Montreal Convention, then the Niger would make the following comments on the draft proposed by the Legal Committee of ICAO.
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24 February 1988)
Comments of the Niger
If, however, the International Conference on Air Law in February
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a) Article II of the -__draft Here the Niger proposes that in the wording of paragraph 1 - the bis word "likewise" be added. This would indicate the complementary relationship which is supposed to exist between paragraph 1 of the Montreal Convention and paragraph 1 - of the draft instrument for the Suppression of Unlawful Acts of bis Violence at Airports Serving International Civil Aviation. Thus paragraph 1 bis - would read: "Likewise any person commits an offence
........... ".
b)
Final Provisions
_ I _ -
The Niger believes that the final provision contained in Articles 9 to 12 of the draft text are a duplication of the provisions contained in Article 15 (paragraphs 2 , 3 , 4, 5 and 6 ) and Article 16 (paragraphs 1 and. 2 ) of the Montreal Convegtion. It is for this reason that the Niger proposes that Article 8 of the draft instrument be the final article of the Protocol and that it be formulated as follows: Article VI11 This Protocol shall be open f o r signature at on by States participating in the International Conference on Air Law a t from to 1 9 8 (hereinafter called the Conference). Subsequently the Protocol shall be open for signature to all States Party to the Convention at The provisions contained in the Montreal Convention of 1 9 7 1 relating to the ratification of the Convention, accession t o it, its entry into force, denunciation of it, etc., are likewise valid for this Protocol.
.........
..........
.......... ...........
.......... .........
IN WITNESS WHEREOF the undersigned Plenipotentiaries, having been duly authorized, have signed this Protocol.
Done at
on
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(Montreal, 9
24 February 1988)
Comments of the International Air Transport Association
1.
General
The i n t e r n a t i o n a l conventions r e l a t i n g t o u n l a w f u l a c t s against t h e s a f e t y o f i n t e r n a t i o n a l c i v i l a v i a t i o n c u r r e n t l y i n f o r c e leave a gap as r e g a r d s such a c t s committed a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n . I A T A t h e r e f o r e welcomes and supports t h e work undertaken by I C A O t o develop a new i n s t r u m e n t f o r t h e suppression o f such a c t s of v i o l ence committed a t a i r p o r t s . 2. Text
The t e x t prepared by t h e 26th Session o f t h e I C A O Legal Committee, and i n p a r t i c u l a r t h e d e f i n i t i o n o f o f f e n c e s i n A r t i c l e 1, paragraph 1 - i s considered a p p r o p r i a t e t o achieve t h e o b j e c t i v e bis, of p r o t e c t i n g s a f e t y a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i 1 a v i a t i o n , as s p e l l e d o u t i n Assembly R e s o l u t i o n A26-4. The e s t a b l i s h m e n t o f i n t e r n a t i o n a l j u r i s d i c t i o n over such offences, as p r o v i d e d f o r i n A r t i c l e 5, paragraph 2 - i s b e l i e v e d t o be an a p p r o p r i a t e means o f e x t e n d i n g bis, t h i s protection.
I t has been noted t h a t i t was t h e understanding o f t h e Working Group which d r a f t e d t h e t e x t t h a t a i r p o r t i n s t a l l a t i o n s , no m a t t e r where t h e y a r e l o c a t e d , were i m p l i c i t l y covered by t h e t e x t o f t h e new i n s t r u m e n t .
3.
P r e v e n t i ve Measures
With r e s p e c t t o t h e question l e f t open by t h e I C A O Legal Committee whether t h e new P r o t o c o l should p r o v i d e - f o r f u r t h e r p r e v e n t i v e measures t o suppress u n l a w f u l a c t s of v i o l e n c e a t a i r p o r t s , I A T A t a k e s t h e v i e w t h a t t h i s m a t t e r should be best r e s o l v e d i n t h e framework o f t h e r e v i e w o f Annex 17.
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I t i s submitted t h a t , when further reviewing Annex 1 7 , special provision should be made f o r considering possible amendments t o strengthen and render more effective the measures designed t o prevent unlawful acts a t a i r p o r t s , and i n particuTar t o prevent and deter unlawful acts of violence a t such airports. The need t o prevent and deter acts of' violence t h r o u g h adequate a i r p o r t security measures is believed t o be of great importance.
4.
Fi na1 C l auses
IATA takes the view t h a t i t would be desirable t h a t the new instrument enters into force as soon as possible. Therefore, i t i s submitted t h a t the required number of r a t i f i c a t i o n s for i t s entry i n t o force should be s e t as low as possible. T h i s would i n the industry's view not only provide an incentive for States t o s t a r t the r a t i f i c a t i o n process, b u t m i g h t also help t o achieve a greater number of r a t i f i c a t i o n s i f the Protocol h a s entered into force a t an early date.
Not for Resale
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INTERNATIONAL CONFERENCE ON hIR LAW (Montrea'l, 9
24 February 1987)
Comments of Areentina in order to strengthen the safety of international civil aviation in the years to come, an instrument is required which refers to the suppression of acts of violence at airports. There are international elements which must be structured and regulated for the benefit of aeronautical activity. Included in this expression are airports, the interests of airlines, the user public and States. Argentina supports the drafting of a "Protocol" which is supplementary and complementary to the Montreal Convention of 1971 for the Suppression of Unlawful Acts against Civil Aviation. Argentina also agrees that the document drafted by the Legal Committee of ICA0 at its 26th Session should be taken as a basis for this "Protocol". This view was also expressed at the meetings of the Legal Sub-committee in January 1987 and those of the Legal Committee in April-May 1987.
A "Protocol" is believed to be preferable to a separate convention not only because of the relationship between the problem and the Montreal Convention of 1971 but also because the latter will be the basis and source for solving all questions raised relating t o acts of violence at airports.
Our country believes that a strong relationship should be established between the Protocol and the Montreal Convention precisely because of the similarity of the protected legal interest. Consequently, among the complementary clauses it should be stated that a State ratifying the Supplementary Protocol will at the same time ratify the Montreal Convention if it has not already done so and a State which in the future ratifies the Convention will at the same time ratify the Protocol. Argentina also believes that some aspects o f the problem which still have to be explored should be studied at the Diplomatic Conference. The first, in our opinion, is the "act of violence". The scope of this expression should be discussed even if no definition is included in the document prepared by the Diplomatic Conference. in o u r view an exchange of well-founded opinions will be sufficient. These opinions would be recorded in the "records" of the Conference s o that authorities and judges can be guided uniformly in interpreting the concept. We must not forget that one hundred and fifty-seven States are members of the Organization. The possibility of different interpretations is therefore great.
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The expression "threat" should also be introduced in the Protocol as an offence to be defined and punished. Various local legislations have introduced it in their texts and it was also introduced in the Conventions of The Hague (1970) and Montreal (1971). If it were not added there would be a lacuna which will present difficulties .in the future application of the. Pro toco 1. Argentina also supports the introduction of a definition of an international airport or else a concept which is much clearer than that which appears in paragraph 1 bis of the document approved by the Legal Committee. Let us not forget that the norms which are being prepared are of an aeronautical nature but at the same time of a penal nature and therefore the territorial expression is o f very great significance.
At the appropriate time, Argentina will propose the concept of an airport which takes into account its three aspects: administrative, geographical, functional.
We believe that the problem o f the "facilities" included in the international instrument should be discussed again in order to indicate clearly whether the acts considered as offences will be only those against the facilities wh'ich are located within the geographical perimeter of the airport or also those outside the airport which serve the airport.
Our country favours the second solution, but in that case i t must be stated that for the purposes of the Protocol, damaging the internal and external facilities which serve the international airport for the purposes of its operation, is also an offence. Damage caused to aircraft not in service located at the airport must also be included as well as attacks on air transit services. Argentina believes that the act of knowingly communicating false information which may constitute or give rise to a danger to the operation o f and safety at an airport should be added as an offence. A similar type of offence appears in Article 1 o f the Montreal Convention of 1971, but it only relates to when such an act endangers the safety of an aircraft in flight. This is another case which should be taken here as a precedent and should be included in the form in which we have indicated.
'
With respect to the enumeration of means used in committing an offence as has been proposed in the first sentence of 1 bis, Argentina favours the deletion of such a list, because there are always some means which are not listed. If, on the contrary, insistence is shown on keeping it, then Argentina believes that i t should be 'made complete since the expression "devices, substances and weapons" is not sufficient. One should add, for example, the deliberate release of atomic energy or forming crowds which with the same purpose obstruct the orderly operation of the airport, thereby causing serious Copyright International Civil Aviation Organization Provided by IHS under license with ICAO damage t o the normal sequence of its functions. No reproduction or networking permitted without license from IHS Not for Resale
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VIA Doc No. 6
In some specific laws such as.the Penal Code of the Argentine Republic, intimidation of the public is included (Articles 211 and 212) and a list is even given of other means used in committing offences such as signals, voices raised in alarm, explosives, chemical agents or related materials. Also included is the circulation of communications or pictures coming from or attributed to unlawful associations or persons or groups known to be dedicated to terrorist activites. Any use of these means in an unlawful and intentional manner should be related to causing damage or to the possibility of causing damage which impairs the operation of an international airport.
Argentina is also in favour of an indepth examination at the forthcoming Diplomatic Conference of the problem of mental injury or moral damage which might be caused by criminal acts such as causing panic, seriously disturbing order or collective emotional states by intimidation. If the mental injury disrupts safety at the airport there would be no decisive reason to exclude i t from being defined as an international offence o r not to pros.ecute and try the offender in the manner provided for by the Protocol. Ln any event, bis the final phrase of Article I - should be kept in this document, namely "if such an act endangers o r is likely to endanger safety at that airport". With respect to the question of jurisdiction and extradition (Article
5 , paragraph 2 bis) some comments must be made. Firstly, only the jurisdiction o f the country where the act occurred should be recognized. If the offender is not present in that country and it was impossible for him to be apprehended by
the authorities of that country, he must be apprehended in the territory in which he is present by the authorities of that country. Subsequently, he may be brought to trial directly o r extradited if extradition has been requested by the country in which the act occurred. But there should be no extradition if such extradition is requested for reasons of the nationality o f the offender or the nationality of groups of persons which have been attacked while they were at the airport. Since the international instrument which is being prepared will be a supplementary Protocol complementary to the Montreal Convention of 1971, all of the norms o f the latter will be applicable tu the cases which occur which are foreseen in the former. One of the most important is that of Article 3 which reads: "Each Contracting State undertakes to make the offences mentioned in Article 1 punishable by severe penalties." The Convention does not give a definition of "severe penalty'' nor can one get a very clear idea of this concept from the "Records" of the International Conference which drew up the Montreal Convention of 1971. The expression was also introduced in the Convention o f The Hague of 1970, but its significance and scope were not defined. For these reasons, Argentina believes that there should be extensive discussion of this matter and consequently a decision that each State which ratifies the Protocol, in the same way as had t o be done with the Conventions of The Hague (1970) and Montreal (19711, will have to introduce domestic legislation in which the legal type of offence and the severe penalties that the instrument refers to are defined. If this is not done then it will not be possible to apply the instrument in question.
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Finally, and as stated earlier, Argentina supports the idea that in the diplomatic clauses it should be stated that ratification of the Protocol will also signify ratification of the Montreal Convention of 1 9 7 1 for those States which have not done so. The fundamental reason for this is that if this solution is not adopted, it will not be possible to apply the Protocol since the norms o f the Convention are the basis and source of the Protocol.
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1//8 028
INTERNATIONAL (Montreal., 9 CONFERENCE ON AIR L A W
24 February 1988)
Comments of Argentina Add endum
Proposal to amend Article II of the Draft Protocol appearing as an Attachment to VIA Doc NO. 3 . In Article 1 of the Convention, the following~shallbe added as new paragraph 1 bis:
"1 bis.
Any person commits an offence if he unlawfully and intentionally:

(a) performs o r threatens to perform an act of violence, against
persons, at an airport serving international civil aviation which causes or is likely to cause serious injury or death; or (b) destroys or seriously damages the internal or external facilities and aids t o approach and landing and to air navigation of an airport serving international civil aviation or aircraft not in service located thereon o r disrupts the services of the airport;
( c l communicates information which he knows to be false,

if such an act endangers or is likely to endanger safety at that a irpo r t 'I
At the conclusion of Article 1, the following shall be added as new paragraph 2 bis:
For the purposes of this Protocol, an airport serving international. civil aviation is considered to be the complex of installations and services permanently and necessarily associated with the execution of aircraft operations and designated as an airport open for use by aircraft involved in international air transportation or engaged in servicing an international flight departing therefrom or arriving thereat."
"2 bis:
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INTERNATIONAL CONFERENCE ON AIR LAW (Montreal, 9
24 February 1988)
Comments of Peru
bis,
We agree with the text of the Preamble.
- With respect to the introductory part of Article 1, paragraph 1 we believe that the phrase commits an offence .II should be replaced by I'. also commits an offence .I1 since Article 1 of the Montreal Convention of 1971 lists certain unlawful acts and therefore, at least in the wording in Spanish, the purpose now is to consider other unlawful acts.
..
". . .
..
..
- With respect to sub-paragraph (a) of the same Article, paragraph 1 the phrase "or is likely to cause" should be deleted since this would clearly be a subjective aspect which could not be described as unlawful except when referring to an attempt to commit an offence which is a criminal aspect already contemplated in paragraph 2 (a) of the same Article. bis,
- In the same sub-paragraph (a) of paragraph 1 - of Article 1, we bis consider that the word "serious" should be deleted because it is subjective and because it might be difficult to have a uniform interpretation of this word in various States when describing an act. This is even more true when one is dealing with a multilateral convention. It was for this reason that this word was not used in the Montreal Convention of 1971. The draft Protocol is complementary to that Convention. Further the severity of the act to be punished is not related to the injury which may be caused but to the consequences of such injury insofar as safety at the airport is endangered.
bis, - In sub-paragraph (b) of paragraph 1 - the word "seriously" should also be deleted for the same reasons expressed in the previous comment.
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- It is clear that this sub-paragraph when referring to "an airport" or "the services of an airport" could be interpreted as including facilities which are located outside the perimeter of the airport. It is clear also that there would be room for a different interpretation. It would therefore be appropriate to have a specific reference to the related operational systems and services.located outside the perimeter of the airport.
bis, - In the last part of Article 1, paragraph 1 - as drafted, we consider that the phrase "or is likely to endanger" should be deleted since in accordance with penal doctrine unlawful acts must be duly described and any subjective assessment avoided. Attached is a draft text proposed.by Peru to replace the existing text. Organization based on the comments made above. It is Copyright International Civil Aviation
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VIA Doc No. 7 Attachment
ATTACHMENT REPLACEMENT TEXT
I.
Preamble "THE STATES PARTY.TO THIS PROTOCOL CONSIDERING that unlawful acts of violence at airports serving international civil aviation jeopardize the safety of persons and property at such airports, undermine the confidence of the peoples of the world in safety at such airports and disturb the safe and orderly conduct of civil aviation for all States; CONSIDERING that the occurrence o f such acts is a matter of grave concern and that, for the purpose of deterring such acts, there is an urgent need to provide appropriate measures for punishment of offenders; CONSIDERING that it is necessary to adopt provisions additional to those of the Convention for the Suppression of Unlawful' Acts against the Safety of Civil Aviation signed.at Montreal on 23 September 1971, to deal with unlawful acts of violence at airports serving international civil aviation,
HAVE AGREED AS FOLLOWS:"
2.
Article 1, paragraph 1 bis
"1 - Any person also commits an offence if he unlawfully and bis. intentionally, using any device, substance or weapon:
(a) performs an act of violence against a person at an airport serving international civil aviation which causes death or injury; or
(b) destroys or damages the facilities of an airport serving international civil aviation or an aircraft not in service located thereon, or disrupts the services of the airport, even if the related operational systems and services of the airport are located outside the perimeter of the airport
i f such an act endangers safety at that airport."
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3.
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Article 1, paragraph 2
"2.
Any person also commits an offence if he:
(a) attempts to commit any of the offences aentioned in paragraph 1 or paragraph 1 - of this Article; or" bis
4.
Article 5 , paragraph 2 bis
" 2 - Each Contracting State shall likewise take such measures as bis. may be necessary to establish its jurisdiction over the offences mentioned in Article 1, paragraph 1 bis and in Article 1, paragraph 2 , insofar as that paragraph relates t o those offences, in the case where the alleged offender is present in its territory and it does not extradite him pursuant to Article 8 to the State mentioned in paragraph 1 (a) of this Article."
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24 February 1988)
Comments of Ecuador
1. We agree that the new instrument should be in the form of a Protocol to the Convention for the Suppression o f Unlawful Acts against the Safety of Civil Aviation, signed at Montreal on 23 September 1971, since this will facilitate its entry into force.
2. We do not consider it appropriate f o r the new instrument to have a definition of what is to be understood as an "international airport" in.view of the series of difficulties this presents. In any case what is of interest is to establish the legal international element of the offence and to try to emphasize the protected legal interest. The offence committed must affect international civil aviation.
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3. We believe that this instrument should be applied only and exclusively when the perpetrator of an offence has managed to escape and is present in another State in which case he will be either extradited o r brought t o trial in the territory in which he has been captured (with severe penalties set 1.
4. We consider that the instrument should not contain a limitative enumeration of acts of violence since other acts of violence might be committed which are not contemplated in this enumeration. Consequently the offence would go unpunished.
5. We share the view that the list of weapons o r means which may be used in committing unlawful acts, "using a dangerous device, substance o r weapon", should be deleted. Such a list is very limitative. There is also the danger that it may not be possible t o apply the instrument when the unlawful act is committed using means other than those listed.
6. With respect to extradition we support the system already contemplated i n Article 8 of the Convention f o r the Suppression of Unlawful Acts against the Safety of Civil Aviation, signed at Montreal on 23 September 1971.
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a. We propose that, in the new instrument, facilities located outside the airport be considered as a protected legal interest. We also propose that acts committed against aircraft which f o r various reasons are not in service ( f o r example maintenance) be considered in the new instrument.
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7. We consider that f o r States which are not a Party to the Montreal Convention of 1 9 7 1 and which wish to be a Party to the new instrument, a mechanism should be set up similar to that provided in Article XXIII o f the Protocol o f The Hague of 1955 to Amend the Warsaw Convention of 1929, whereby a State which adheres to the Protocol and which is not a Party to the Convention automatically becomes a Party to the Convention as amended.
- 223 VIA Doc No. 9 1/12/87
24 February 1988)
Comments of the International Federation o f Airline Pilots Associations The International Federation of Air Line Pilots Associations has followed with great interest the developments leading towards the preparation by the ICAO Legal Committee at its 76th Session of a Draft Instrument for the Suppression of Unlawful Acts of Violence at Airports Serving International Civil Aviation.
IFALPA continues to support the initiatives undertaken by the international civil aviation community in this respect and it expects that the new instrument will be a valuable and necessary expansion of the 1970 Hague and 1971 Montreal Conventions.
With regard to the texts approved by the ICAO Legal Committee for inclusion in the above-mentioned Draft Instrument the Federation wishes to make the following comments:
1.
Form of a new instrument Although an overwhelming majority of the 26th session of the ICAO Legal Committee favoured the preparation of a protocol supplementary to the 1971 Montreal Convention, IFALPA continues to believe that for purely practical purposes the new instrument should be drafted in the form of a separate convention.
2.
The placing of a "bomb" In this respect IFALPA wishes to associate itself with those members of the Legal Committee who believed that a provision related to the placing of a bomb or other similar device should be highlighted as a separate offence in the new instrument.
3.
Scope of the new instrument Apart from the above-mentioned proposals which were, in some detail, among those presented by IFALPA to the 36th session of the ICAO Legal Committee, the Federation also expresses the view that the scope of the proposed new instrument would appear to b e too narrow in the sense that attacks on a town terminal o r against a passenger or crew coach are not encompassed.
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It is hoped that the above-mentioned proposals will be taken into consideration Copyright International Civil Aviation Organization
by the Conference.
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VIA Doc No. 10

1/12/87
24 February 1 9 8 8 )
Comments of Colombia Concerning the form of the instrument, we wish to reiterate our position, i.e. that the most effective and desirable solution would be the adoption of a Protocol additional to the Montreal Convention of 1 9 7 1 . We believe that the Montreal Convention, on the one hand, enjoys wide acceptance by States and, on the other hand, effectively deals with subjects of great importance such as extradition, taking into custody of the offender, preventive measures to avert the commission of offences, etc.; elements which are fundamental to a Convention of this type. Therefore, 'the redundant inclusion of such fundamental elements as those mentioned above can be avoided by the adoption of a Protocol rather than a separate Convention independent of the Montreal Convention of 1971. As regards content, our Delegation stated at the meeting of the Lesal Committee that other unlawful acts, such as drug trafficking, although non-violent and different from those provided for the Sub-Committee's draft, ought t o be included among the offences to which the new instrument would S e applicable. However, that category of unlawful acts has now been studied by the Vienna Conference on D r u g Abuse and Illicit Trafficking, which has defined the offence of trafficking in narcotics and psychotropic substances, the obli3ation upon States to impose severe penalties on the perpetrators of such activities, and the question of extradition. We therefore find that this matter, having been dealt with by the above-mentioned Conference, need not be taken into account within the instrument under consideration.
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In reference to the definitive text prepared b y the Legal Committee, we would like to make the following comments:
"4rticle 1, paragraph 1 bis ___---1 - Any person commits an offence if he unlawfully and bis. intentionally, using any device, substance o r weapon:"
Kn our view the word "unlawfully" is superfluous, since the word "intentionally" broadly covers the concept of unlawfulness; moreover, if an act of violence is performed against a person or airport, o r if airport facilities or aircraft are intentionally destroyed o r damaged, it is unnecessary to stipulate that such action, in addition t o being intentional and harmful, is unlawful. Further reinforcement i s also provided by the phrase "if such an act endangers or is likely to endanger safety at that airport". We consider that the word "unlawfully" does not add clarity and may actually lead some
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l e g i s l a t i v e b o d i e s t o presume t h a t t h e u n l a w f u l n e s s o f t h e a c t b e i n g j u d g e d m u s t be p r o v e d , i n a d d i t i o n t o i t s i n t e n t i o n a l n a t u r e and t h e damage i n f l i c t e d . The f a c t i s t h a t a n y o n e who i n t e n t i o n a l l y c a u s e s damage i s c o m m i t t i n g an u n l a w f u l a c t from t h e v e r y o u t s e t .

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" ( a ) performs an a c t of v i o l e n c e a g a i n s t a person a t an a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n which c a u s e s o r i s l i k e l y t o c a u s e s e r i o u s i n j u r y o f d e a t h ; or". I n o u r o p i n i o n , t h e p h r a s e l'or t h r e a t e n s t o p e r f o r m " s h o u l d b e r e t a i n e d f o l l o w i n g t h e word " p e r f o r m s " s i n c e a t h r e a t c a n c a u s e a s much damage a s , o r e v e n more damage t h a n , an a c t o f t e r r o r i s m . W a l s o s u g g e s t t h e d e l e t i o n o f t h e word " s e r i o u s " b e f o r e t h e word e ' l i n j u r y " , because t o q u a l i f y t h e i n j u r y might l e a d t o d i f f i c u l t i e s o f i n t e r p r e t a t i o n , and w e c o n s i d e r i t s u f f i c i e n t t o r e f e r t o i n j u r y w i t h o u t q u a l i f i c a t i o n . The l a t t e r i s t h e t a s k o f t h e p r e s i d i n g j u d g e w i t h a v i e w t o d e t e r m i n i n g t h e s e v e r i t y o f t h e s e n t e n c e , b u t w e d o n o t b e l i e v e i t s h o u l d be included i n t h i s t e x t . Since we a r e d e a l i n g w i t h an i n t e r n a t i o n a l o f f e n c e w h i c h i s t o b e p r o s e c u t e d by t h e S t a t e where t h e o f f e n d e r i s f o u n d o r t o which h e i s e x t r a d i t e d , i t would be p r e f e r a b l e t o a v o i d d e f i n i n g t o o r i g i d l y t h e o f f e n c e i t s e l f o r i t s consequences i n o r d e r t o avoid f u t u r e problems i n reaching extradition decisions. W i t h r e g a r d t o s u b p a r a g r a p h b ) o f 1 b i s , w e c o n s i d e r t h a t t h e word ' ' s e r i o u s l y ' ' a p p e a r i n g i n t h a t t e x t s h o u l d a l s o b e d e l e t e d f o r t h e same r e a s o n . "Article 1, paragraph 2
"2.
(a)
Any p e r s o n a l s o commits an o f f e n c e i f h e : a t t e m p t s t o commit a n y of t h e o f f e n c e s m e n t i o n e d i n p a r a g r a p h 1 o r p a r a g r a p h 1 -o f t h i s A r t i c l e , or". bis
I n o u r view t h e r e f e r e n c e t o p a r a g r a p h 1 i s s u p e r f l u o u s , s i n c e what we a r e examining is t h e t e x t of a P r o t o c o l . Paragraph 1 belongs t o t h e Montreal Convention of 1971, n o t t o t h e t e x t of t h e P r o t o c o l . S i m i l a r l y , and f o l l o w i n g t h e same r e a s o n i n g , i t would n o t b e s u b p a r a g r a p h ( a ) s i n c e i n t h a t c a s e t h e r e s u l t would b e t o amend s u b p a r a g r a p h ( a ) of paragraph 2 of A r t i c l e 1 of t h e Montreal Convention, which i n o u r view i s not t h e purpose of t h e supplementary P r o t o c o l .
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"Article 5 , paragraph 2 bis --
_ I -
Our comment aims solely at clarifying the text; f o r this reason we suggest replacing the phrase "mentioned in paragraph 1 (a) of this Article" by the words "in whose territory the offence was committed.". We believe that this gives greater clarity to the text, which would then read as follows:
" 2 - Each Contracting State shall likewise take such measures as bis. may Se necessary to establish its jurisdiction over the offences mentioned in Qrticle 1, paragraph 1 - and in Article I , paragraph 2 , insofar as that bis, paragraph relates to those offences, in the case where the alleged offender is present in its territory and it does not extradite him pursuant to Article 8 to the State in whose territory the offence was committed".
Subject to the above comments, we believe that the text may be submitted for consideration by the International Conference.
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V I A Doc No. l i 1/12/87
INTERNATIONAL CONFERENCE ON A I R LAW
(Montreal, 9
24 February 1988)
Comments of t h e Kingdom of t h e Netherlands
1. I n r e l a t i o n t o t h e D r a f t P r o t o c o l a s a whole, a s p e c i a l r e f e r e n c e t o t h e i n t e r e s t s and r e s p o n s i b i l i t i e s of t h e S t a t e i n whose t e r r i t o r y t h e o f f e n c e has been committed ( t e r r i t o r i a l S t a t e ) would seem t o be u s e f u l . Given t h e n a t u r e of t h e o f f e n c e and t h e s e r i o u s e f f e c t s t h e r e o f on t h e l e g a l o r d e r of t h e t e r r i t o r i a l S t a t e , t h e l a t t e r would have a primary i n t e r e s t i n s u b m i t t i n g t h e c a s e t o i t s competent a u t h o r i t i e s f o r t h e purpose of p r o s e c u t i o n . Other S t a t e s should t a k e i n t o account t h i s p o s i t i o n of t h e t e r r i t o r i a l S t a t e .
Such a r e f e r e n c e could b e d r a f t e d as f o l l o w s : "Contracting S t a t e s s h a l l , when applying t h i s Convention t o an o f f e n c e covered by t h i s P r o t o c o l , p a y due r e g a r d t o t h e i n t e r e s t s and r e s p o n s i b i l i t i e s of t h e C o n t r a c t i n g S t a t e i n whose t e r r i t o r y t h e o f f e n c e has been committed." The p l a c e of such a r e f e r e n c e i n t h e D r a f t P r o t o c o l could be l e f t f o r d e c i s i o n by t h e Conference.
2. In r e l a t i o n t o t h e d e f i n i t i o n of t h e o f f e n c e , as c o n t a i n e d in A r t i c l e 1, paragraph 1 b i s , t h e Netherlands emphasize t h e i r s t r o n g p r e f e r e n c e f o r a more l i m i t e d , or q u a l i f i e d d e f i n i t i o n . Consequently, t h e y reserve t h e r i g h t t o resubmit t h e i r proposals t o t h a t e f f e c t .
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VIA Doc No. 12 1/12/87
24 February 1988)
Comments of Chile
I.
General comments
The text prepared by the Legal Committee constitutes a valuable legal instrument for the suppression of unlawful acts o f violence at airports serving international civil aviation. The text is couched in simple language and is basically limited to completing the list of offences described in the Convention for the Suppression o f Unlawful Acts against the Safety of Civil Aviation signed at Montreal in 1971, addressing on this occasion the issue of airport security without affecting any substantive provisions of the above-mentioned Convention, while maintaining in force its present articles, particularly those relating to jurisdiction and extradition.
II.
Form of the new instrument
Our country is in favour of giving the new instrument the status of a Protocol supplementary to the Montreal Convention of 1971 for the Suppression of Unlawful Acts against the Safety of Civil Aviation. This position is based on the fact that the suppression of unlawful acts of violence at airports involves, simply, new categories of offence which may easily be added to the list of offences appearing in the above-mentioned Montreal Convention o f 1971 without affecting any of its substantive provisions, and this circumstance facilitates the ratification of the Protocol in preparation.
III. Analysis of the Legal Committees draft
1) Preamble. The Preamble is simply a synthesis and preview of the contents of the Protocol, underlining its basic philosophy. It is written in language similar to that of the Preamble to the above-mentioned Montreal Convention of 1971, thus making it possible to align their contents while avoiding the use of unnecessarily complex terminology. Chile considers that this wording should be retained in the text which is to be approved by the Diplomatic Conference.
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2)
Article 1 , paragraph 1 bis List o f the means u s e d in t h e commission of -- offence -_ an I I -
a)
The definition of the offence includes a list of the means by which it may be committed, which was not included in the text proposed by the Sub-Committee established to carry out the preparatory work for the Legal Committee. Chile, along with other delegations, at first rejected any such list, deeming i t to be unnecessary, since i t had been agreed to refer to offences against p e r s o n s o r property at an airport serving international civil aviation provided that such acts "endangered o r were likely to endanger safety at that airport". This proviso rendered such a list unnecessary,-the means used being unimportant. Later, realizing the need for guidelines in defining the category of offence when dealing with terrorist acts, Chile accepted the above-mentioned list which in some sense serves to identify such terrorist acts. The list which appears is, nevertheless, incomplete, since the offence might be committed by means .other than a device, substance or weapon. The use of manual force, o f a karate blow o r of other methods or means not mentioned in the list referred to, is entirely within the bounds of possibility. It is therefore recommended that the colon ( : I be deleted and the phrase "or other means" be added following the word "weapon" at the conclusion of the first paragraph of Article 1 , paragraph 1 - This would allow scope bis. for all possible means that might be used for the commission o f the offence.
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It must also be recalled that, in the course of the Legal Committee's deliberations, an attempt was made to apply the adjective "dangerous" to the means used, which was opposed by the Delegation of Chile on the grounds that this description is subjective and difficult to assess, and would be of little help to presiding judges in applying the Protocol when adopted.
b) Threats
The text proposed by the Legal Sub-Committee included "the threat to perform" an offence, which might certainly endanger the safety of an airport and constitute a separate category of o.ffence. However, the prevailing o p i n i o n , supported by our country, was that a threat is not sufficiently serious to be classified as an international offence warranting mandatory extradition o r jurisdiction procedures. This is a complex subject which might be reviewed within the framework of the Diplomatic Conference and which our country wishes to study in greater depth in the light of such deliberations.
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c)
Bodily injury.
The Sub-Committee's text included the adjective "bodily" as applied to possible resulting injuries. The majority of countries, including our own, decided to delete this expression due to its restrictive nature, since this would exclude from the Protocol moral o r mental damage, which may be as significant as bodily injuries, if not more so. Should this motion again be raised during the Diplomatic Conference, the Delegation of Chile will confirm the above position, which was not retained by the Legal Committee.
d)
Serious injury
The Legal Committee's text retained this qualifier in referring to injuries, which is supported by our country since the offence being dealt with is international in nature and must be significant i n its effect. e) Definition of an airport
This subject was extensively discussed in the Sub-Committee and the Legal Committee, where consideration was given to whether o r not the concepts of "airport" or "international airport" or "airport serving international aviation" should be defined. Our country was opposed to including this definition, judging it more appropriate to retain these concepts as established by time, since neither the Chicago Convention n o r its Annexes have specifically defined them for purposes applicable to the Protocol under study, an omission which can scarcely be considered accidental.
In any case, should the need for a definition be once again raised during discussion of this subject at the Diplomatic Conference, our country would lean towards adopting a functional and non-geographical criterion, i.e. one based on the specific designation given to particular airports by the States concerned, by analogy with Article 10 of the Chicago Convention.
3)
Article 1, paragraph 2
The text was formally amended by the Legal Committee to make it consistent with Article 1, paragraph 2 , subparagraph (a) of the Montreal Convention of 1971, so as to deem included therein the new offences shown in bis, paragraph 1 - which was supported by Chile. With regard to complicity, referred to in subparagraph (b) o f Article 1, paragraph 2 o f the hontreal Convention of 1971, no amendment was required since the present wording, in the opinion o f Chile, is broad enough to encompass it.
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- 234 VIA Doc No. 1 2
4)
Article 5, paragraph 2 bis
in this Article it should be pointed out that as regards extradition, an attempt was made to establish preferential, priority or ancillary classes of extradition, which, in the view o f the Chilean Delegation, would have introduced a serious element of confusion as well as upsetting the balance between prosecution and extradition as established in the Montreal Convention of 1 9 7 1 , a stand which Chile will maintain during the Diplomatic Conference.
IV.
Other subiects
The Legal Committees deliberations touched upon certain topics which should be called to mind, since they will probably be raised again at the Diplomatic Conference.
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(a) Adoption of preventive measures at airports to forestall --unlawful acts of violence therein.
It was judged that such measures should remain within the ambit of Annex 17 to the Chicago Convention, on Security, and this position was approved by Chile.
(b) Participation of ------- in the new Protocol if they are not States parties t o the Montreal Convention o f 1 9 7 1 . This subject will be analysed at the Diplomatic Conference and the Chilean Delegation believes the discussion should be focussed on its administrative aspects.
-----(cl Possible conflicts between the Montreal Convention of 1971 and the new Protocol.
The Chilean Delegation considers in principle that such conflicts are unlikely to arise, provided that the Protocol does not modify the substance of the Montreal Convention other than to incorporate a new category of offence.
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V I A Doc No. 1 3
1/12/87
24 February 1 9 8 8 )
Comments o f Australia
Australia f i r m l y supports the e a r l y conclusion of an inetrument for the suppression of unlawful acts of violence at airports serving international c i v i l aviation, an8 believes that considerable progresa was made towards t h i s end at the 2 6 t h Session of the Legal Committee.
Australia remains of the view that t h e new instrument is best developed by the c r e a t i o n of a new and separate convention incorporating all applicable prcvioions of the 1971 Montraal convention for the Suppression of U.?lawful A c t s against the Safety of Civil Aviation. A new convention would be better a b l e to take into account t h e importance and autonomy of t h e problem.
The offences which it is sought to prohibit internationally are qualitatively different from those i n t h e 1 9 7 1 Montreal
Convention, have different effects and raise separate considerations. One example of t h i a is the c l e a r territorial a s p e c t of an o f f e n c e being committed i n an a i r p o r t , The qualifying element in t h e new instrument is interference with the safety of afrports, n o t of civil aviation g e n e r a l l y . Further, t h e creation of a new convention would support existing p r a c t i c e in following t h e approach taken whcr the two cloeely related regimos of the Hague and Montras1 Conventions were kept separate.
In advocating a new convention rather than a protocol t o the existing Montreal Convention, Australia would of couree not wish to c h a n g e the Montreal regime which it strongly believes should romain intact as the most effective way of d e a l i n g with the pr ob1em + Copyright International Civil Aviation Organization
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- 236 -
Australia would p r e f e r there to be no specific reference t o "terrorism" in t h e new instrument, f o r it believes the most e f f e c t i v e way of gaining w i d e s p r e a d support for the instrument and effectiveness of the controls is to concentrate on p r e v e n t i n g Ehe acts which are con6icsre serious enough to warrant an
international regime.
In concentrating on the unlawfill acts, however, Auetralia would wish to have asbroad a scope as p o s s i b l e and would for that reason prefer it i f types O E o f f e n c e s are n o t enumerated because t o enumerate is to include some and e x c l u d e others, Auetralia thinks it ia prefsrable to focus on the e f f e c t that the acts have so t h a t new means of committing offences do not eecape the scope of the instrument. Australia believes that no f u r t h e r q u a l i f i c a t i o n o r definition is required to t h e t e r m Itairport serving international a v i a t i o n " a s this provides a flexible and functional approach to the problem, and it would be inpracticable to attempt to define llinternationEl airport".
HOWBVBr,
Australia would wish to R B S included a specific reference to off-airport facilities and t h e pereonnel who work there, both b e i n g eeaontial t o the ~ a f eand orderly q x r a t i o i : of
airports.
of the current draft of the t e x t may cover off-airport facilities by reference to IlthPr facilities o f an airport s e r v i n g
l(5) ) &
Lnto.?ational civil a v i a t i o n f 1 , Australia woul nevertheless prefer a s p e c i f i c reference to remove any doubt an8 would f u r t h e r wish to s e e personal i n j u r y of the personnel at off-airport facilities covered.
Australia aupporte tha i n c l u ~ i o nof Itairport not in BervicO" 8 s conaietent with drafting the inetrument in t h e wideet poeeibe terms.
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While Australia acknowledges that Article 1, paragraph
- 237 VIA Doc No. 13
A u s t r a l i a would wish to see included
in t h e new instrument the
concept of t h r e a t a s t h r e a t s t o perform acts of violence can serlously impair the s a f e t y of airports even t h o u g h they do not a m o c n t to e i r e c t attempts at actual violence. T o o n i t t h r e a t s
would l e a v e a serious gap in t h e new instrument. T h e r e is a distinction in law between Itthreatsv1 and l l a t t e m p t a l ' ; Australia
would therefore eupport that the d r a f t be amended to i n c l u d e Ilthreats" cis well a13 t~attampts'fto comnit offences,
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- 239 VI.4 Doc No. 1 4 1/12/87

I N T E R N A T I O N A L ' C O N F E R E N C E ON AIR LAW
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(Montreal, 9
- 24 February 1988)
Comments of France France is particularly pleased with the remarkable progress made during the meeting of the Legal Committee. The draft Articles developed at that meeting represent a great improvement over the text produced in January 1987 by the Legal Sub-committee. Nevertheless, France believes that the Diplomatic Conference could make further progress and improve the wording of the text in several ways:
I.
The first item relates to Article 1 - b) of the draft. bis
1. The first comment France would like to make concerns the words "disrupts the services of the airport". -
France does not object to mentioning services in the instrument but feels that the above wording is too imprecise to permit the establishment o f a criminal offence. Disruption of services is too vague and abstract a concept and is difficult to translate into criminal law. France therefore believes that Article 1 - of the draft Protocol bis should say only that it is an offence to interrupt the services of the airport. bis, The last phrase of Article 1 - sub-paragraph b) should therefore read as follows:
". . . o r
interrupts the services of the airport".
2 . Secondly, France does not believe that i t is possible to refer, located in sub-paragraph b), to acts committed against aircraft not in service ---on the --- -airport.
The instrument being developed is an additional Protocol to the Montreal Convention, which only covers damage to aircraft in flight o r in service. It would be inappropriate, rationae materiae, to change the scope of application of the Montreal Convention through a protocol on airport security, since the definition of an aircraft in service in Article 2 (b) of that Convention was the result of laborious negotiations. The very compatibility of the Convention and the Protocol is at stake.
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- 240 VKA Doc No. 14
3 . For the reasons stated above, France believes that if the wording of sub-paragraph b) is not improved, it will not be reasonable to establish universal jurisdiction for the offences mentioned in that paragraph (the French --- -----Delegation's statement to that effect is reflected in paragraph 4 : 6 0 o f the Report of the 26th Session of the ICA0 Legal Committee). France believes that sub-paragraph b) must be worded more precisely if universal jurisdiction is t o be established for the offences listed therein.
bis, With regard to Article 2 - France does not wish t o give preference 11. to extradition to the State in the territory o f which the offence was committed.
As the French Delegation and others stated in the Legal Committee (paragraph 4 : 6 3 of the fieport) i t would be preferable to retain a more flexible formulation (which would, in particular, permit extradition to the State o f nationality of the victim).
France therefore considers that in Article 2 bis the words "to the State mentioned in paragraph I ( a ) of this Article" should be deleted.
KZK, Finally, France would like to express the following thoughts about the link between the Montreal Convention and the future Protocol.
The fact that a State is a party t o the Montreal Convention must not entail an obligation to become a party to the Protocol. The States parties to the Montreal Convention must be able t o choose whether o r not they will become parties to the Protocol.
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On the other hand, a State cannot become a party to the Protocol i f i t is not a party to the Montreal Convention. The Protocol merely complements the Convention; i t does not repeat its provisions, It is therefore not an independently applicable instrument. it would therefore be appropriate to include a provision in the Protocol to the effect that adherence to the Protocol is equivalent t o adherence to the Convention.
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- 241 V I A Doc Po.
14
12/2/88 ADDENDIJM ---
TNTESNATTONAT, CONFERET'JCE OFJ A T P

(?fontreal, 9
T..ATJ
24 F e b r u a r y 1 9 5 8 )
Comments of F r a n c e
ADDFNTWM
7. S e c o n d l y , F r a n c e would l i k e t o make a p u r e l y f o r m a l comment on s u b - p a r a g r n p h b ) o f p a r a g r a p h I - The e x p r e s s i o n i n K n q l i s h " d i s r u p t s t h e bis. s ~ r v i c e s " h a s b e e n t r a n s l a t e d i n t o F r e n c h by " e n t r a v e g r a v e m e n t l e s s e r v i c e s " . T h i s t r a n s l a t i o n i s n o t a c c u r a t e and shou7d b e r e p l a c e d by " i n t e r r o m p t l e s services".
3. F i n a l l y , F r a n c e s e e s n o r e a s o n t o i n c l u d e a t h r e a t among t h e o f f e n c e s c o v e r e d by t h e P r o t o c o l . s i n c e t h e M o n t r e a l C o n v e n t i o n makes n o p r o v i s i o n f o r a t h r e a t . C e n e r a l l y s p e a k i n g , F r a n c e w i s h e s t o a v o i d any d i s a g r e e m e n t b e t w e e n t h e i n i t i a l t e x t and t h e P r o t o c o l .

The C o n f e r e n c e i s i n v i t e d t o t a k e t h e a b o v e p r o p o s a l s i n t o consideration.
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1. Duri.ng t h e g e n e r a l d i s c u s s i o n , c e r t a j - n De!egati.ons e x p r e s s e d t h e w i s h t o d e l e t e from p a r a g r a p h 1 - t o b e a d d e d t o A r t i c l e 1 o f t h e w a n t r e a l bi.s S o n v e n t i o n t h e w o r d s " u s i n g a n y d e v i c e , s u b s t a n c e o r vieapon". Other D e l e g a t i o n s w o u l d l i k e , on t h e c o n t r a r v , t o add t h e e x p r e s s i o n " o r by any o t h e r means". I t must b e r e c a l - l e d t h a t t h e p r e s e n t w o r d i n g m e e t s t h e c o n c e r n o f t h e J J e g a l Committee t o e x c l u d e from t h e s c o p e o f t h e P r o t o c o l a c t s n o t i n v o l . v i n g t h e u s e o f m a t e r i a l . means s u c h a s s t r i k e s o r g a t h e r i n g s by d e m o n s t r a t o r s . The J,egal Committee c o n s i d e r e d t h a t t h e s e w e r e n o t t e r r o r i s t a c t s j u s t i f y i n g i n t e r n a t i o n a l c r i m i n a l i z a t i o n . For t h a t r e a s o n , F r a n c e does n o t wish a m o d i f i . c a t i . o n o f t h e t e x t w h i c h would r u n t h e r i s k o f i n c l u d i n g s t r i k e s and g a t h e r i n g s bv d e m o n s t r a t o r s w i t h i n t h e s c o p e o f t h e P r o t o c o l .
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- 243 VIA Doc No. 15 ii21a7

INTEKNATIONAL CONFERENCE ON AIR -A W -L (Montreal, 9
24 February 1988)
Comments of Chad ------In the proposed formulation any idea of acting together or complicity is excluded. The target o f the acts of aggression is limited to only one person. The means used are mentioned only in the singular. This is not always the case. We therefore believe it wise to reformulate these provisions as follows:
1.
Article 1, para_gfaph 1 bis I
"1 bis. Any person or group of persons commits/commit an offence if -- heithey unlawfully and intentionally, using devices, substances o r weapons: .
(a) performslperform an act of violence against a person o r group of persons at an airport serving international civil aviation which causes or is likely to cause serious injury or death;"
2. "2.
Article 1, paragraph 2 bis -Any person o r group of. persons also commits/commit an offence if Article 5, paragraph 2 bis
he/ they :I'

3.
"2 bis. in the case where the alleged offenderoffenders is/are II present in its territory
...
....
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- 245 YIA Doc No. 16

1/12/87
24 February 1988)
Comments of the Fdration Aronautique Internationale
THE FEDERATION AERONAUTIQUE I N T E R N A T I O N A L E , a n a c c e d i t ed O b s e r v e r a t I C A O , i s r e p r e s e n t e d i n 7 1 c o u n t r i e s of t h e w o r l d .
F e d e r a t i o n o b j e c t i v e s i n c l u d e t h e p r o m o t i o n of k n o w l e d g e a n d u n d e r s t a n d i n g w i t h i n i t s m e m b e r s h i p a n d b e y o n d by e n c o u r a g i n g t h e d e v e l o p m e n t of p r i v a t e , s p o r t i n g a n d c o m p e t i t i v e a v i a t i o n o n i n t e r n a t i o n a l levels, promoting friendly i n t e r c h a n g e i n a p e a c e f u l environment.

The Federation w i l l lend its f u l l support t o any undert a k i n g t h a t w i l l s t r e n g t h e n t h e e x i s t i n g Convention t h a t is designed t o s u p p r e s s u n l a w f u l a c t s of v i o l e n c e a t i n t e r n a t i o n a l a i r p o r t s s e r v ing civil aviation.
T h e r e f o r e , t h e FEDERATION AERONAUTIQUE I N T E R N A T I O N A L E h a s t h e h o n o u r t o f u l l y e n d o r s e t h e p r i n c i p l e of a D r a f t P r o t o c o l proposed a s a s u p p l e m e n t a r y t o t h e e x i s t i n g C o n v e n t i o n d a t e d S e p t e m b e r 2 3 , 1 9 7 1 a n d accepts I C A O ' s i n v i t a t i o n t o b e p r e s e n t a n d t o p a r t i c i p a t e a t t h e I n t e r n a t i o n a l C o n f e r e n c e on A i r L a w t h a t w i l l c o n s i d e r t h e D r a f t i n F e b r u a r y of 1 9 8 8 . Comments o n t h e D r a f t P r o t o c o l

I
I n A r t i c l e 111, p a r a 2-, h o w e v e r , o n t h e p e n u l t i m a t e bis l i n e , t h e w o r d "him" is u s e d , d e n o t i n g a p a r t i c u l a r sex. This is a s m a l l inconsistency b u t onethat could possibly p r e s e n t p r o b l e m s i n p r o s e c u t i o n p r o c e e d i n g s i f t h e " p e r s o n " or " o f f e n d e r " w a s of t h e o p p o s i t e s e x .
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1) Throughout t h e d r a f t and s p e c i f i c a l l y on page 2, t h e t h i r d p a r a g r a p h of t h e i n t r o d u c t o r y preamble a n d i n A r t i c l e 11, I b i s , r e f e r e n c e t o p e r p e t r a t o r s of u n l a w f u l a c t s i s made b y u s i n g t h e word " p e r s o n " or " o f f e n d e r " r e s p e c t i v e l y .
- 246 V I A Doc No. 1 6
21 . A r t i c l e 11, p a r a I - ( b ) s t a t e s : " . . . . . d e s t r o y s o r bis s e r i o u s l y d a m a g e s t h e f a c i l i t i e s o f a n a i r p o r t s e r v i n g ......"
FA1 c o n t e n d s t h a t and i n l e g a l argument c o u l d be t h e presumption being p o s s i b l e be d e s t r o y e d or damaged b e f o r e
t h e w o r d " f a c i l i t i e s " is too g e n e r a l construed t o include - f a c i l i t i e s , all t h a t - f a c i l i t i e s w o u l d have t o all l e g a l p r o c e e d i n g s c o u l d be l a u n c h e d .
A d d i t i o n a l l y , F A 1 q u e s t i o n s t h e n e e d for t h e u s e of t h e w o r d s " n o t i n service" u n l e s s t h e r e i s i n f o r c e a u n i v e r s a l l y accepted d e f i n i t i o n of t h i s c o n d i t i o n a n d t h a t d e f i n i t i o n i s d o c u m e n t e d .

I f s u c h i s n o t t h e c a s e , FA1 s u g g e s t s t h a t t h e p a r a be r e w r i t t e n t o read:
(b)
d e s t r o y s or s e r i o u s l y damages a n y f a c i l i t y o f an a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n o r a n y a i r c r a f t located t h e r e o n , or d i s r u p t s a n y s e r v i c e s of t h e a i r p o r t , i f s u c h act o r a c t s e n d a n g e r s o r i s l i k e l y t o endanger safety at t h a t airport.
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- 247 VIA Doc No. 17 1/12/87
24 February 1988)
'
Comments of the Islamic Republic of Iran
1-
Combat Against Acts of Violence zeeds Sincere Collective

.Cooperations
1-1
Acts of violence a g a i n s t the s a f e t y a n d re,*ularity o c i v i l f
aviation, whether domestic o r i n t e r n a t i c n a l , a r e matt-ers of g r e a t concern to every body within the civil v i a t i o n system. Acts of violence jeoperdite t h e safety of persons a n d property wherever they a r e perpctra.ted, whether on board air'craft, o r a t a i r p o r t s , o r i n a i r l i n e offices o r i n s p e c i a l vehicles c a r r y i n s a i r t r a v e l l e r s back a n d forth to a i r p o r t s .
1-2
3 ips or
Unlawful a c t s of violence a r e normally c a r r i e d out with t h e i n f l i c t i n s d ~ a i h%r?d total d e s t r u c t i c n , therefore, they confidence of the peoples of the world i n the
seriously undermine t h e
s a f e t y aiia cfficierity o1 c i v i l a i r t r a n s p o r t a t i o n .
1-3
J t i s tht?rcfccc incumbent upon a l l countries of the
wotld,
particular!y
t h e contracting S t a t c s of ICA@, to cooperate i n t h e
combat a g a i n s t a l l unlawful a c t s of violence a g a i n s t c i v i l a v i a t i o n wherever t h e place a n d , whoever the perpetra?or.

1-4
To t h i s er,d the Islamic Republic of I r a n hss a l w a y s been
yrzpitrcd t o cooperate with other countries t h a t sincerely s h a r e the a rorcmentioned points.

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VIA Doc No. 17
- 248 -
opportunity for the sincere cooperation called for above. The theme of t h i s Conference, which h a s emanated from Assembly Resolution A 26-4, c a n best be adoption of provisions a d d i t i e n a l to those of the Montreal Convention of 1071 s o t h a t a l l aspects of uiila*dful a c t s a g a i n s t the safety of c i v i l . a v i a t i o n 3r.e examined a n d a n e x h a u s t i v e l e g a l instrument c a n becamc a p p l i c a b l e to protect c i v i l a v i a t i m a g a i n s t a n y a c t of violence t h a t on t h c one h a n d , can undermine the ccinfidence of the peoples of the world i n s a f e t y a n d r e g u l a r i t y of c i v i l a i r t r a n s p o r t a t i o n , a n d on the other h a n d is not covered by t h e three s e c u r i t y canve;-.tions now e x i s t i n g . .
scssicn of ihc I C A 0 Lcgal Co!i,;nittce a n d is to h e considered b y t h i s
Conference c a n be a n cffcctivc instrument, complementary to the e x i s t i n g s e c u r i t y ccnvciiijons i n c i v i l a v i a t i o n , i f i t i s examined i n the l i g h t of the following considerations;
permit prompt action b y governments to t a k e necessary s t e p s for i t s widespread a p p l i c a b i l i t y before long. The'.Delegation of Islamic Republic
of 1ra.n is of the opinion t h a t the proposed form, namely a protocole to

t h e i971 Montreal Convention, wnuld meet t h i s objective. However, d u e
account ought to be t a k e n of the points expressed i n p a r a 3.2 h e r e under.

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The 1388 InternaTional Conference on A i r L a w i s a n excellent
Committee. -- ----The d r a f t i n s t r i i m c n ~ which h a s bccn cveloped by the 26th
The form of the new instrument should be such t h a t would
-249VIA Doc No. 17
Accession to the new instrument should not be subject to p r i o r
or simultaneoys accession to t h e Montreal Convention of 1971. Furthermore the method of accession t o be adopted should not undermine the Montreal Convention of 1971. Due to the doubts expressed i n t h e 26th session of the Legal Committee these points should be c l a r i f i e d b y t h e . Conference.
The content a n d scope of the new instrument should be e x h a u s t i v e , i n t h a t i t s h o u l d enccrnpass a11 possible a c t s of violence i n t h e c i v i l a v i a t i o n system which, on t h e one h a n d c a n h a v e a n undermining effect on the confidcnce of peoples of t h e world i n t h e
siifcty a n d s g u l a r i t y of c i v i l a i r t r a n s p o r t a t i o n a n d , on the other h a n d
a r e not d e a l t w i t h by thc hion?rci.il Convention of 1971. The d r a f t
insirunient developed by the 26th session of the Legal Committee does not q u i t e f u l f i l these objectives since i t does not cover t h e following types
of unlawful a c t s of violence. a-
A l l kinds of a t t a c k s a g a i n s t c i v i l a i r p o r t s ,
particularly air attacks
This k i n d of a c t
of violence cn b e considered t o be covered

b y the bioad term of t h e proposed a r t i c l e 1 ,
para 1) bis. However i t w a r r a n t s a n

explicit term.
b-
Acts of violence a g a i n s t a i r l i n e offices located outside of a i r p o r t s ( i n towns!.

Acts of violence a g a i n s t s p e c i a l vehicles T r a n s i t t i n g a i r t r a v e l l e r s b a c k a n d forth
c-
to a i r p o r t s .
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The Delegation of Islamic Republic of I r a n proposes t h a t the points e x p r e s s e d i n t h i s p a p e r , p a r t i c u l a r l y those i n p a r a 31, be

t a k e n i n t o consideration a t the Conference a s a p p r o p r i a t e .
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-251
VIA Doc No. 18 1/12/87
- 24
February 1 9 8 7 )
Comments of Cuba
1. During the 26th Session of the Legal Committee, the Republic of Cuba expressed its interest in the development within the international community of a category of offence, broad in scope and meeting with wide acceptance, which might be used as a basis not only for multilateral measures but also for domestic legislation and for the bilateral solution which the Republic o f Cuba regards as the most desirable.
2. During those deliberations the Cuban Delegation voiced its concern regarding the lack of protection found at a number of very large facilities not falling under the definition of an airport. Other delegations raised similar c :ncerns.
3. As the debate drew to an end and the minutes were approved, a proposal arose which, subject to editorial modification, might satisfy the concern expressed by several States relative to the extent of protection defined by the notion of an airport.
This proposal met with the support of a considerable number of delegations (including that of Cuba) which considered that it might offer a compromise.
4 .
Since the Diplomatic Conference affords an opportunity f o r a far more extensive study of the foregoing considerations, the Delegation of Cuba wishes t o submit these comments for consideration by the Conference.
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- 253 V I A Doc No. 19
1/12/87
INTERNATIONAL CONFERENCE O N AIR LAW
(Montreal, 9
2 4 February 1988)
Comments of the United States
The United States, as a participant in the Sub-committee of the Legal Committee that met in Montreal in January.1987 and in the 26th Session of the Legal Committee, endorses the view expressed by the Council that the text of the new instrument developed by.the Legal Committee is the "product of an outstanding spirit of cooperation and understanding." The United States notes that the final draft of the offense prepared by the Legal Committee meets the principal objectives of Assembly Resolution A26-4 in that the text covers virtually all types of terrorist acts of violence likely to occur at airports serving international civil aviation. The final draft of the Protocol supplementary to the Convention for the Suppression of Unlawful Acts against the Safety of Civil Aviation is, accordingly, generally acceptable to the United States.
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- 255 V I A Doc No. 19
ADDENDUM 25/1/88
I N T E R N A T I O N A L CONFERENCE ON A I R LAW (Xontreal, 9
2 4 F e b r u a r y 1988)
Comments o f t h e U n i t e d S t a t e s ADDENDUFI
This is in reply to your le%ter LM 1/9.1-87/82, dated October 21, 1987. The United States expresses its appreciation to the Secretariat for preparing the draft Protocol enclosed with your letter. Like the great majority of States which participated in the 26th Session of the Legal Committee, the United States strongly supports the view that the new legal instrument should take the form of a Protocol to the Montreal Convention. The United States, in responding to your letter LM 2/11.4-87/57, has already commented on the texts approved by the 26th Session of the Legal Committee for inclusion in the Protocol. Subject to the relatively minor technical drafting suggestions.below, the United States is prepared to support the final provisions prepared by the Secretariat. Technical Drafting Suggestions
1. In Article II, paragraph 2 of the draft Protocol, the U.S. sugqests'that the chapeau be revised to read:
"2. In Article 1 of the Convention, paragraph 2 (a) shall be deleted and replaced by the following: 'I
This slight revision would establish closer

parallelism between paragraphs 1 and 2 of Article II of the Protocol. 2. The U.S. suggests that Article VI, paragraph 2 be revised to read:
"2. Ratification of this Protocol by any State which is not a Party to the Convention shall also have the effect of ratification of or accession to the Convention."
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- 256 V I A D o c No. ADDENDUM
19
The new words "ratification of or" would cover those few States which have signed b U t Kot yet ratified the Montreal Convention: rtirication of the Protocol by such S t a t e s would have the effect of ratification of (as opposed to accession to) the Montreal Convention. The addition of the word "also" and the deletion oT the words ''as amended by tnis Protocol" have a different purpose. As drafted by the Secretariat, paragraph 2 of Article VI might be read to imply that a State, not at present a Party to the Montreal Convention, that ratified the Protocol would thereby establish treaty relations o c l y with those States which were Parties to "the Convention as amended by this Protocol.
I'
The U.S. believes this result would not reflect ICAO's policy to encourage the widest participation possible in multilateral agreements. The language we propose would make it absolutely clear that such a State would also establish treaty relations with States which are Parties t o the Montreal Convention but have not ratified the Protocol. Of course, consistent with the principie expressed in paragraph 5, Article 40 of the Vienna Convention an the Law of Treaties, the State ratifying the Protocol would be considered a s a Party to the unamended Montreal Convention in relation to this latter group of States. In Article VII, paragraph 1, the United States suggests that the word "its" before the word "deposit" be deleted. Such deletion would be consistent with the wording in the parallel provision in Article 15, paragraph 4 of the Montreal Convention.
3.
4. The U.S. suggests that the chapeau of Article X, paragraph 1 be revised to read:
"1. The Depositary Governments shall promptly inform all States Parties to the Convention (including States Parties to the Convention as amended by this Protocol), and all signatory S tates :'I
This revision parallels the obligations of the Depositary Governments established in Article 15,
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- 257 V I A Doc No. 19
ADDENDUM
paragraph 5 of the Montreal Convention. The U.S. does not believe that the Protocol should require the notification of new classes of States or Organizations in addition to those already indicated in the Convention. The parenthetical phrase in the suggested revision seeks, for the reasons noted in paragraph 2 above, to avoid unduly strict separation of "States Parties to the Convention" and "States Parties to the Convention as amended by the Protocol.' The revision also refers simply to "the Convention" (vice "the Montreal Convention of 1971") in light of the definition in Article I of the draft Protocol. 5. In Article X, subparagraph l(a) of the draft Protocol, the U.S. suggests that the word "adherence" be replaced by "accession."
6. In the interest of maintaining parallelism with the provisions of the Montreal Convention, the U.S. sugqests that the last clause in the draft Protocol be revised to read:
"IN WITNESS WHEREOF the undersigned Plenipotentiaries, being duly authorized thereto by their Governements,.have signed this Protocol.n
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- 259 -
VIA Doc No. 20

28/1/88
INTERNATIONAL COXFERENCE ON AIR LAW (Montreal, 9
2 4 February 1988)
Comments of I s r a e l
1.
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Format
A) The instrument should take the form of a Protocol amending the Yontreal Convention.
B) The Protocol should be open for accession only for those states
which are party to the Montreal Convention. Israel concurs, therefore, with the language of Article VI (2) of the proposed Protocol.
As a consequence of the above, the language of the Protocol should follow, whenever possible, the language -of the Montreal Convention.
C)
2.
Article II - Article 1 BIS
A ) It would be preferable that the qualifying clause in the first sentence of Article 1 BIS: "Unlawfully and intentionally, using any device substance or weapon'' be deleted. The said clause might only serve as an escape clause for offenders.
B)
Israel wishes to propose that the dissemination of false information be included as offence under the Protocol as follows: "(c) Communicates information which he knows to be false." Article III
3.
Israel wishes to p o i n t out that the international community should recognise that there might be additional states which have a legitimate right of jurisdiction over the offender such as the state whose citizens were killed or injured by the offender.
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-261 -
V l . 4 Doc No. 21
29/1/88
INTERNATIONAL CONFERENCE ON &IR L A W (Montreal, 9
24 February 1988)
Comments of Greece ----
Greece should like to express its satisfaction with the positive The draft Protocol elaborated during.the May 1987 meeting constitutes an excellent working basis for the Diplomatic Conference.
w o r k done in the Legal Committee.
In its present form the draft seems to us to be sufficiently mature to be submitted to the Drafting Committee. it is in fact the result of extremely close scrutiny and several o f the provisions represent the fruit o f a laboriously achieved compromise. Moreover, this draft is complete because it encompasses all types of terrorist acts which might be committed at airports serving international civil aviation.
Nevertheless, in the interest o f obviating, inter alia, any possible legal lacuna, Greece should like to suggest the following:
1. The title of the draft Protocol would be more in line with its content if it read as, "Supplementary Draft Protocol o r Additional Draft Protocol to the Convention for the Suppression of Unlawful Acts against the In fact, Safety of Civil 4viation signed at Montreal on 23 September 1971". this is not so much a draft Protocol to amend stricto sensu the 1971 Montreal Convention, as it is a Protocol completing it, to wit, adding to it other categories of international offences. 2. In paragraph 1 bis (b), the French article "les (installations)" in the first G e should be replaced by "des". The clause would then read, "(b) dtruit o u endommage gravement des installations d'un .'l. This drafting change would exactly mirror the wording of aroport Article 1 (d) of the Montreal Convention.
...
..
[Translator's Note: the corresponding change to the English text necessitates the deletion of the article "the" preceding "facilities" in the first line of paragraph 1 - (b1.1 bis
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- 262 ,
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1.
: i
V L A Doc No. 21
3 . 1 n o r d e r t o a v o i d p o s s i b l e c o n f u s i o n between t h e o f f e n c e mentioned i n s u b - p a r a g r a p h ( b ) o f t h e d r a f t P r o t o c o l and t h a t i n A r t i c l e 1 ( d ) o t h e M o n t r e a l C o n v e n t i o n , we wonder i f i t might nt be n e c e s s a r y i n p a r a g r a p h 1 b i s ( b ) o f t h e d r a f t P r o t o c o l t o add t h e words " o t h e r t h a n t h o s e mentioned i n A r t i c l e 1 ( d ) of t h e M o n t r e a l Convention" a f t e r " f a c i l i t i e s o f an a i r p o r t serving international c i v i l aviation". indeed, as a i r n a v i g a t i o n f a c i l i t i e s c o u l d p o s s i b l y b e p a r t of t h e f a c i l i t i e s of a n a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n , i t may be n e c e s s a r y t o c l a r i f y t h e l a t t e r c o n c e p t somewhat more so a s n o t t o c o n f u s e i t w i t h t h a t o f a i r n a v i g a t i o n f a c i l i t i e s which a r e c o v e r e d by t h e M o n t r e a l Convention. T h i s s u g g e s t i o n c o u l d p r e v e n t a p o s s i b l e o v e r l a p o f t h e two p r o v i s i o n s which o t h e r w i s e e s t a b l i s h a d i f f e r e n t l e g a l regime i n r e s p e c t o f i n t e r n a t i o n a l j u r i s d i c t i o n .
4 . I n t h e same v e i n and w i t h a view t o g r e a t e r c o n s i s t e n c y w i t h t h e M o n t r e a l C o n v e n t i o n ( s e e A r t i c l e 5 ( b ) ) , we wonder i f i n A r t i c l e 111 o f t h e d r a f t P r o t o c o l o n e s h o u l d n o t i n c l u d e , among t h e S t a t e s t o which e x t r a d i t i o n i s p o s s i b l e , t h e S t a t e s i n which a i r c r a f t n o t i n s e r v i c e a r e r e g i s t e r e d .
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- 263 VIA Doc No. 22 5/2/88
2 4 February 1988)
Comnents o f t h e Airport .4ssociations Coordinating Council
As vividly witnessed at the 26th Session of ICAO Assembly in October 1986, aviation security presents the most serious challenge now facing civil aviation. AACC repeatedly condemned all acts of terrorism against civil aviation and strongly stressed the States' unequivocal responsibility to protect civil aviation against such acts. AACC notes that the Draft Protocol to Amend the Convention for the Suppression of Unlawful Acts against the Safety of Civil Aviation signed at Montreal in September 1971 virtually covers all acts of terrorism endangering human life at international airports, acts leading to destruction of or damag-e to property at international airports, and damage to security facilities and services resulting in serious interference w i t h the operation of t h o s e facilities and services. As a participant in the deliberations of the 26th Meeting o f the ICAO Legal Committee (January 1987) that resulted in the text of the Draft Protocol, AACC AACC also supports the other welcomes and firmly supports its promulgation. treaties and agreements the international community had promulgated at Tokyo in 1963 regarding safe return of passengers of hijacked aircraft, at the Hague in 1970 regarding extradition or prosecution of hijackers, at Montreal in 1971 regarding prosecution for sabotage of aircraft, and at Bonn in 1978 regarding economic sanctions against nations that harbor those who commit criminal acts against civil aviation. AACC urges the governments of all states to adhere to the prospective Protocol and other related international agreements, and to enact national laws or regulations required to implement such agreements.
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- 265 V I A Doc No. 23
8/2/88
I N T E R N A T I O N A L CONFERENCE ON A I R L A W
( P l o n t r e a l , 9 - 2 4 F e b r u a r y 1988)
Comments o f Uruouav
A) Unfortunately our Administration w'i11 not t a k e ' p a r t i n the Conference
B)
With r e s p e c t t o tho t e x t of the d r a f t Protocol:
1. I n t h e second Considering c l a u s e , i t i s s u g g e s t e d t h a t i t s a y i s a m a t t e r o f g r a v e c o n c e r n and t h a t f o r t h e p u r p o s e o f d e t e r r i n g them t h e r e i s an u r g e n t need .I'.

'l.
..
..
2.
A r t i c l e T.
Where i t s a y s "The C o n v e n t i o n which t h e p r o v i s i o n s o f t h e p r e s e n t C h a p t e r m o d i f y " , i t i s s u g g e s t e d t h a t i t s a y "The C o n v e n t i o n w h i c h t h e p r e s e n t Protocol modifies".
3.
A r t i c l e II
Where i t s a y s " I n A r t i c l e I o f t h e C o n v e n t i o n , t h e f o l l o w i n g s h a l l b e a d d e d a s new p a r a g r a p h 1 b i s " , i t i s s u g g e s t e d t h a t i t s a y " I n A r t i c l e 1 o f t h e C o n v e n t i o n t h e f o l l o w i n g s h a l l b e added a s p a r a g r a p h 1 b i s " [ T r a n s l a t o r ' s note: I n t h e S p a n i s h v e r s i o n , Uruguay s u g g e s t s r e p l a c i n g t h e word p a r r a f o ( p a r a g r a p h ) by o r d i n a l , numero o r a p a r t a d o . ] Where i t s a y c "Any p e r s o n commits a n o f f e n c e i f h e ' u n l a w f u l l y and i n t e n t i o n a l l y " , i t i s suggested t h a t "unlawfully" b e d e l e t e d as i t i s u n n e c e s s a r y and r e d u n d a n t .
I t i s a l s o s u g g e s t e d t h a t no r e f e r e n c e b e made t o t h e means u s e d t o commit t h e o f f e n c e a s t h e y may r e s t r i c t t h e s c o p e o f t h e norm.

I t is suggested t h a t the t e x t beginning "if such an a c t endangers .I1 which f o l l o w s sub-paragraph b ) of A r t i c l e I b e d e l e t e d . Keeping t h e t e x t would d e p r i v e t h e norm o f i t s e f f e c t i v e n e s s , would p l a c e a d a n g e r o u s l i m i t a t i o n o n i t s a p p l i c a t i o n a n d would r e q u i r e p r o o f o f c i r c u m s t a n c e s w h i c h are d i f f i c u l t t o v e r i f y .
..
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- 266 VIA Doc No.- 23
I.
Article I f 1
It is suggested that the present text of the draft Protocol be replaced by the following:
"2 bis. The States Parties shall exercise their jurisdiction when the accused is present in their territories and they do not proceed to extradite him."
The remaining provisions do not give rise
EO
any comments.
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- 267 -
V I A Doc No. 24 41218a

(T.lontreal, 9
24 F e b r u a r y 1988)
Comments of t h e United Kingdom
The United Kingdom appreciates the efforts of the Legal Committee to draft an acceptable text f o r a Protocol to the Montreal Convention. There remains, however, an important issue of substance which the UK considers needs to be specifically addressed at the Diplomatic Conference (and which, i n . the UK' s view, w i l l require amendment to the Legal Committee's text). The basic question remains what unlawful acts should be made an international crime. The context in which we are working is that of terrorism at airports serving International civil aviation, but because there is no internationally accepted definition of terrorism we have to define the scope of the offences covered by reference to other criteria. Proper definition i s required so as not to cover behaviour which should properly be left to the regulation of Member States' domestic laws. It is not, in the UK's view, an acceptable basis f o r this new international crime that an act happened to have taken place at an airport serving international civil aviation (even if this act had unintended consequences for civil aviation). Something more is required to justify the "internationalisation" of the crime. The UK suggests that the proper basis for international jurisdiction and f o r drawing the line between what should and should not be covered by this instrument, is that certain acts (as described in the instrument) are committed at such an airport by persons who had the intention, not only of committing the act in question, but also of causing wider consequences in relation to the operation of the This test should be satisfied where airport o r c i v i l aviation. persons commit the acts in the knowledge that such consequences would inevitably follow. On reflection, the UK does not consider that the qualifier agreed by the Legal Committee "if such act endangers or is likely to endanger safety at the airport" satisfactorily achieves the purpose we believe Member States have in mind. First, it does not rule out Of scope of the instrument acts of violence by, for example, hooligans who cause mayhem at an airport. This should properly be a crime, but n o t an international crime. Secondly, depending upon how the concept of "safety at" the airport is interpreted, it may on the other hand rule out some terrorist acts which the Legal Committee considered should be caught - eg the destruction of an aircraft not in service parked in an out of the way place at the airport where no persons are present to be endangered by the act of destruction.
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- 268 VIA Doc No. 2 4
The concept of "safety at" an airport is ambiguous. It could refer to the safety of persons generally or more specifically to the ability of the airport to perform its functions, for example, with regard to the safe take-off or landing of aircraft. Persons' safety may be affected by many minor occurrences, or by acts where this consequence is not intended. A s suggested above, in the UK's view, we should rather return to the concept of the "safe operation of the airport" (both in respect of its provision of terminal facilities and its functions w i t h regard to the safe take-off or landing of aircraft) and the criminals to be covered by this instrument should be those who intend or recognise the inevitability that their acts will have these wider consequences. With these considerations in mind the UK suggests that the wording of the qualifier should more appropriately be expressed along the following lines:
"if such act is designed to endanger the safe operation of that airport as a place able to accommodate either persons assembling in connection with air travel or the take-off or landing of aircraft. ''
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The UK considers that in this event the instrument would be more soundly based to cover those acts which are properly the concern of Member States in this Organisation. In the UK's view, it is o n l y if the qualifier is expressed in this way that it would then be possible to consider further the issue raised as to the geographical extent of where acts have to be committed before they are within the scope of the instrument (eg in relation to off-airport facilities).
- 269 INTERNATIONAL CONFERENCE ON AIR LAW

(Hontreal, 9
VIA Doc No. 25 5/2/88
24 F e b r u a r y 1988)
Comments o f J a p a n
1.
XqESDMENTS TO THE C O N V E N T I O N
With respect t o the p h r a s e , "airport serving

international c i v i l a v i a t i o n " in Article 1
(a)
and ( 5 )
zf A r t i c l e I I of the Draft Trotacol ( A t t a z h r e n t to V I X

Doc. N D , 3 ) , we wish t o propose t a r e d r a f t i t a s follows
foz t h e sake of csnvenience of reference on t h e s c o p e O E
t h e irts t r u n e n t
,
( h i s new d r a f t c l o s e l y follow8 s u b p a r a g r a p h
(a),
4
O
2aragraph 1 O f A r t i c l e
and paragrapk 5 O f A r t i c l e
-f
t h e Montreal Convention cor.carning * a i r
navigation
faci?ities.")
1).
Article 1 b i s (a) and (b) shall be arcened to read as
f 01 lows ;
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" 1 b i s ( a ) performs an act of violence against a which causes or Is person a t serioua injury or death; or likely to cause
(b) destroy8 or seriously damages t h e facilities of or aircraft not in service located thereon or disrupts t h e services of t h e airportrm
2).
The following new paragraph ahall be Inserte8 after
paragraph 5 of Article 4 of the Convention;

6 . . "in t h e cases contemplated in paragraph 1 Article 1, this Convention shall a p p l y only rt m e a
of
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3).
Present paragraph 6 of Article
o f the Convention
s h a l l be renumbered as paragraph 7 .
2.
F I N A L PROVISIONS
W i t h r e s p e c t t o t h e F i n a l P r o v i s i o n s , we w i s h t o p r o p o s e . a
draft text
;IS
per attachment.
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- 271 -
VIA Doc No. 25

Attachment
ATTACHMENT
Proposed New Wording f o r F i n a l P r o v i s i o n s A r t i c l e s I V and
(To be d e l e t e d )
Articie VI 1. Tnis P r o t s r g l sSall be s u S j e c t t o r a t i f i c a t i o n by t h e
signatary S t a t e s .
2.
~ z S C a t e which 2 s - c y zc:
sisr: this ? , r D t o c c l b e f a r e
its er.try i n t o f o r c e in accordasce with p a r a g r a ? h 1 o f
A r t i c l e VII, m a y accede t o it a t any t i m .

3.
Instruments of ratification an instrunents of
accession s h a l l be deposited with one of t h e Governments

of the Union of Soviet Socialist Republics, the United
Xingom of Great Britain and Northern Ireland and the

United States of America, which are hereby designate8 t h e
Depositary Governments.
4.
Any Gtate which becomes a Contracting State to the
Convention after the entry into f o r c e of thie Protocol shall, failing an exproasion of a different intention at
the tiam of the deposit of the instrument referred to in
paragraph 3 of A r t i c l e 15 of t h e Convention,
be considered
as a C o n t r a c t i n g S t a t e t o t h e C o n v e n t i o n a s amended by
this Protocol
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- 272 VIA Doc

No.
25
A t t a chment
Aye, ? 2
? I -
u. -.
. *---a
.d
rla
1.
This rz3t;c:l
sha:;
sate:
ic:o
Lcrce thirty a y s
follcwixg t Y 3 d a k e of k k 2 d e . . i s i t of instruments of
ratification by ter, stat^^ sigxazory to this Protocol.

2.
F o r ot,ii?r S z a t o s , t:c.ie
CT:
? r ~ - ~ - ?a-h~ 2 1 entsr i n t o a
..VIYA
force
th- =tatr.
of en-,r:= iz:o
force rf t h i s Protocol in
accordance with the parasra2h 1 of this Article, or thirty

day6 following the C a t a or? deposit of their instruments of
ratfficatisn o:
3.
As
accessioa, w h i c k w e r is l a t e r .
csces i n t o force, it shall
suon a s this P:otoccl
be registered by tha Depositary Governments pursuent to
Article 102 of the C h a r t e r OC the United Nation8 and

pursuant to Article 83 of t h e Protocol on International
Civil Aviation (Chicago, 1944).
A r t i c l e VI11
(9
be Bsleted)
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- 273 -
VIX Doc No. 25

Attachment
Article IX
1.
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Any Contracting State
may denounce this Protocol by
written notification to one of the Depositary Governments.

2.
Denunciation shall take effect six months following
the date on which notification is received by o n e of the
Depositary Governments.
3.
Any Contracting State which d e n o u n c e s t h e Convention
shall be considered as also having enounced this P r o t o c o l .
Article X
T h e Depositary Governments shall prornptly inform a l i
States Parties to the Convention and a l l signatory and acceing States of the dates of each signature, deposit of each instrument of ratification o r accession, receipt of
any denunciation of this Protocol and entry into force O
this Protocol and other n o t i c e s ,
Article XI
This P r o t o c o l shall be open or signature at Montreal

on
1988 by States participating in the
international Conference on A i r Law held a t Montreal
from
A ter
to
1988.
1988, the Protocol shall be open for
signature to a l l States in MOSCOW, LonUon and Washington, until i t cornes into force in accordance w i t h Article V I X *
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- 274 VIA Doc No. 25 At tachment
IN WITNESS WHEREOF the undersigned Plenipotentiaries,

b e i n g d u l y a u t h o r i z e d t h e r e t o by t h e i r G o v e r m e n t e , have
6igne t h i s Protocol.
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DONE at Montreal, this
day o f
one thousand nine hundred and eighty-eight in three

originals, each being drawn up in four authentic texts in the English, French, Russian and Spanish languages.
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- 275 -
VIA Doc No. 26

9/2/88
24 February 1988)
(Presented by the Delegation of the Union of Soviet Socialist Republics)
1. Tt is proposed that in the text of the instrument being developed a separate Article be included containing specific obligations on States to take preventive measures at airports serving international civil aviation, as follows:
Art.
...
"Contracting States undertake, as far as possible, t o ensure at their national airports serving international civil aviation:
a)
the presence of duly authorized and trained officers responsible for ensuring security at that airport; the holding of regular inspections and continuous monitoring of aviation security measures by forces of national bodies of the State in which the airport is located; the establishment of rules t o prevent unauthorized access by persons or vehicles to the air side and also to other areas which are of vital importance for the operation of the airport."
b)
c)
2. The need to take more specific preventive measures is explained by the fact that the provisions of paragraph 1 of Article 10 of the Montreal Convention are too general in nature and in no way direct States towards specific measures to be applied at airports serving international civil avi at ion.
The provisions of Annex 1 7 which are the most detailed regulatory measures for the prevention of acts of violence at airports are recommendatory in nature and do not have the force of obligations of the level of an internat ional treaty. The proposed specific preventive measures are of a universal nature and can in the future be defined specifically both in ICA0 documentation, including Annex 1 7 and the Aviation Security Manual, and in the national practices of States.
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-277 V I A Doc No. 2 7
10/2/88
INTERNATIONAL CONFERENCE ON A I R LAW ( L o n t r e a l , 9 - 2 4 F e b r u a r y 1988)
Conirncntc o f t h e u n i t e d R e p u b l i c o f T a n z a n i a
T a i z a n i s s u p p o r t s f u l l y thl? d i i r i s i o n lof t h e 2 6 t h S e s s i o n L e q a l C o m m i t t e ? tti3it t h e "new i n s t r m e n t " s " i u l d
83?
the
as-,ume t h e forin
o f a P r o t o c o l s u p p l e m e n t a r y t o t h ? Convent i o 7 f o r t h e Supp:es-,ioT o ? Llnladfcil Acks a g a i n s t t h ? s a f e t y o f C i v i l A v i a t i o n s i g n e d a t M o n t r e a l on 2 3 r d CJepteinSer, 1 9 7 1 w i t h o u t a w n d i n g t h e S a s i c p r i n c i ? l e s

o f t h a t CorivEfntioii.
This w s i t i o n has been reached followinq careful examination

of
t h e r q j 2 r t o f t h e Cu5-Comnitteu, t h a t o f t h e R a p p o r t e u r , a7d Tanzania b e l i e v e s
f i n a l l y t h e r e p o r t o f Lhe L e g a l Committee i t s e l f .
t h a t t h ? thre;: [ J I C o - I v e q t i o n s a l r e a d y p r o m u l g a t e d u i d e r t h e a u s p i c e s o f ICAO. n s m e l y , t h e Tokyo C o n v e n t i o n o f 4 S e p t e ; n 5 e r , 1 9 6 3 on O f f e n c e s

Th-. Hague
a n 3 c z r t a i n o t h e r Acks ctJtnTitte.-.d 3-1 13osrd A i r c r a f t ;
C o i v e q t i o n o f 16 De.:e-nber,
1970 f o r t h e S i J p p r e s s i o n o f U n l a w f u l S e i z d r e
o c A i r c r a f t ; a n d tl-3 L . l o i t r z a l Co7vzqtioi3 3 f 2 3 Se?te;nber 1 9 7 1 f o l t h l S u p p r z s s i o n 3 f U n l a w f u l Acts a g a i n s t t h ? s a f e t y o f C i v i l A v i a t i o n , o n l y
l e f t a small g a p a s r e g a r d s 3 f f e n c e s and o t h 2 r a c t s o f v i o l e n c e corn-nitte:j

a t a i r p o r t s s : ? r v i n g i n t e r n 3 t i o i a l C i v i l a v i a t i o n w h i c h whould n o t warrant a s e ? a r a t e instrurneqt. I n t h i s r e g a r d , t h e r e is a very c l o s e
r e l a t i o n s h i p a:i-J s i m i l a r i t y b e t w n s n t h i s p r s b l e m and t h e p r o t e c t e d l e g a l i n t e r e s t s - c s w e r e d .J7d3r the M o v t r e a l Convention o F . 1 9 7 1 .

Not for Resale
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1.
Form - o f t h e niw - s t r u m 3 n t . - in
- 278 V I A Doc No. 37
2.
s i g n i f i c a i t l y the i n t e n d r d objzztive o f protecting saFety a t a i r p o r t s s e r v i n g n t e r a r i t i o r i a t c.\ i l a \ i a t

~0.i.
1 . k i n t e r ; i 2 t iorial e l e m - i t o'
u-ider A r t i c l e 5 , p3raqraph 2 - o f t h e d r a f t inctrcixerit o f i n t e r n - i bis
t i o n a l j u r i s d i c t i o n o b e r such off-e:ir.?s b y 311 t h e s t a t e s c a n c e r n e d .

Howsver, p r a p o s a l c f o r improvement o f t h e d r a f t Pratocol a l s o seems a l p r o p r i a t e a t this 2 3 i n t . ia!
P reanb l e :
I -
I n lnrd?r t o 3 i i ? l i f y t h e i n t e r n a t i o i 2 1 e l e m z n t s o f t h e new i n s t r u m e n t s ,
t h e s e c m d c t 3 n s i d 3 r i n g C l a x s e o" c h r S r s a m h l e , a f t e r t h ? wr>rds " m a t t e r
o r g r a v e c a y z e r n " , s ! - I o , J ~ be a d d e d t h e w J r d s " ~
ti, -n t e r n a t i o n a l i
Conniuii t y .
...
'I
T a i z a i i a i s o f t h e view t h a t t h e e x p r e s s i o i " t h r e a t " t o perform a-i a c t o f violen1:e a t a i r p 3 r t s s e r v i n g i n t e r n 3 t i o n a l C i v i l a v i a t i o n be

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i n t r a d w z e d i n t h ? P r o t o c o l a 3 a d i s t i n c t o f f e n z e p u n i s h s b l e under
t h e new i n s t r u n e n t .
Pens1 cod?; Resale snrl v a i i o i i s l e g i s l q t i o n s i n Not for
,rimy
- 279 -
V I A Doc No. 27
c o l J i t r i e s o f t h ? m - l d have i n z a r p 3 r a t e d t h i s exi3re.scio-i a s a cTimina1 a c t p o s i n g danger t o l i f e a r ? r o p e r t ) . "Thrzats" t o
cmmit o f f e : i n e s contemplated u n d e ; p a r a q r q h 1 -- o f A r t i c l e 1 bis

a t a i r p o r t s s;.rving i n t e r n a t i o n a l C i v i l a v i a t i o n w i l l i n e v i t a 5 l y unljerm.ine t h e c m f i d e x e o f t h e p e o p l e s of t h e d o r l d . i n t h e s s f e t y a t such airports
?17-_1 ev:ritu.3lly
i n h i b i t t h 2 o r d 2 r l y d?velo?mc?t
of c i v i l a v i a t i o i .
(C)
D e f i n i t i o n o f an " i n t e r n s t i o i - o r t " 31 airp
--
For reas.3iis advancad by t h ? n 3 j t ) r i t y o f s t a t e r e 7 r e s e n t a t i v e s i n t h e

Legal C o m n i t t e e , Ta-izania does n o t r e n d e r s u p p o r t t o t h e v a r i o u s p r o p 3 s a l s t h 3 t a? i n t e r n a t i a - 1 3 1 a i r p 3 r t c h x l d h t ? d i f i n - .
Thzrz w i l l
alwgys be q J i t e a -ImKnb'?r o f a d n i n i s t r a t i v e s , l e g i s l a t i v e s , g z a g r a p 5 i c a l a n 3 f u n c t i o n a l problems w i t h i n t h e s t a t e s c a n - e r n e d & i c h w i l l r e a d e r
a:,y S:J:h
j e f i l i t i o n d i f f i c u l t t o implenent o r c a n p l y w i t h .
(d)
List oc meais used i n the Zorninission of the D f f e n x s .

With the c o n t i n u o u s d?velopments i n s c i e x e .YXJ
c
t e c h i 3 l o g y , t h e list
o f rn1a1'3 enumerated I r t d z r paragraph 1 b i-- of A r t i z l e 1 i-c by no s means e x h a u s t i v e and w i l l never b r e x h a u s t i v e . Hotvever, i n x d ? r the
~13313 so
t o a l l a y t h z .-snczrn oc m x t s t a t e s h i c h :on-,ider
far
enumerated n o t e x h a u s t i v e en3Jgh, i t i s recommended t h a t t h e p h r a s e
"or
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.2f
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cownitting t h i affences.
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Not for Resale
- 281 V I A Doc No. 28 15/2/88
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INTERNATIONAL CONFERENCE ON A- LAW IR-
(Montreal, 9
24 February 1988)
D Text p r e p a r e d by t h e - r a f t i n g Committee
T i t l e of t h e P r o t o c o l
P r o t o c o l f o r t h e S u p p r e s s i o n o f Unlawful A c t s o f V i o l e n c e [ a t ] , Airports Serving International C i v i l Aviation, S u p p l e m e n t a r y t o t h e Convention f o r t h e S u p p r e s s i o n o f Unlawful Acts a g a i n s t t h e S a f e t y o f C i v i l A v i a t i o n , Done a t M o n t r e a l on 23 September 1971 Signed a t M o n t r e a l on F e b r u a r y 1988.
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Not for Resale
- 283 VIA Doc No. 29 15/2/88
INTERNATIONAL CONFERENCE ON A I R L A W
(Montreal, 9
24 F e b r u a r y 1988)
A r t i c l e III of t h e D r a f t P r o t o c o l ( P r o p o s a l p r e s e n t e d by I t a l y )
A r t i c l e III I n A r t i c l e 5 o f t h e C o n v e n t i o n , p a r a g r a p h 2 s h a l l b e d e l e t e d and r e p l a c e d by t h e f o 1lowing : "2. Each C o n t r a c t i n g S t a t e s h a l l l i k e w i s e t a k e s u c h m e a s u r e s a s may be n e c e s s a r y t o e s t a b l i s h i t s j u r i s d i c t i o n o v e r t h e o f f e n c e s mentioned i n A r t i c l e 1, p a r a g r a p h s l ( a ) , ( b ) and ( c ) , i n A r t i c l e 1, p a r a g r a p h 1 and i n A r t i c l e 1, p a r a g r a p h 2 , i n s o f a r a s t h a t p a r a g r a p h r e l a t e s t o t h o s e o f f e n c e s , i n t h e c a s e where t h e a l l e g e d o f f e n d e r i s p r e s e n t i n i t s t e r r i t o r y and i t d o e s n o t e x t r a d i t e him p,ursuant t o A r t i c l e 8 t o any of t h e S t a t e s m e n t i o n e d i n paragraph 1 of t h i s A r t i c l e . "
bis
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THIS PAGE INTENTIONALLYLEFT BLANK-
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-285
V I A Doc No. 3 0 1 ' e 18F

I-,
(Montreal, 9
24 F e b r u a r y 1 9 8 8 )
A l t e r n a t i v e Text f o r t h e F i r s t Two Preambular Paragraphs ( P r o p o s a l p r e s e n t e d b y t h e Kingdom o f t h e N e t h e r l a n d s )
CONSIDERING t h a t u n l a w f u l a c t s of v i o l e n c e which endanger o r which a r e l i k e l y t o endanger i n d i s c r i m i n a t e l y t h e s a f e t y of p e r s o n s a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n o r which j e o p a r d i z e t h e s a f e o p e r a t i o n of s u c h a i r p o r t s , undermine t h e c o n f i d e n c e of t h e p e o p l e s o f t h e world i n s a f e t y a t s u c h a i r p o r t s a n d d i s t u r b t h e s a f e and o r d e r l y c o n d u c t o f c i v i l a v i a t i o n f o r a l l States; CONSIDERING t h a t t h e w o r l d - w i d e e s c a l a t i o n o f a c t s o f t e r r o r i s m i n a l l i t s f o r m s i s a m a t t e r o f g r a v e c o n c e r n and t h a t , f o r t h e p u r p o s e o f d e t e r r i n g s u c h a c t s , t h e r e i s a n u r g e n t need t o p r o v i d e a p p r o p r i a t e measures f o r punishment of offenders;
Not for Resale
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INTERNATIONAL CONFERENCE ON A I R L A W
Not for Resale
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16/2/88
'
(Montreal, 9
24 February 1988)
Draft F i n a l Clauses ( p r e s e n t e d by t h e D r a f t i n g Committee)
Article V
T h i s P r o t o c o l s h a l l be open f o r s i g n a t u r e a t Montreal on 1988 by S t a t e s p a r t i c i p a t i n g in t h e I n t e r n a t i o n a l Conference on A i r Law held a t Montreal from 1988, t h e P r o t o c o l s h a l l be to 1988. A f t e r open f o r s i g n a t u r e t o a l l S t a t e s i n Moscow, London, Washington and Montreal, u n t i l i t e n t e r s irito f o r c e i n accordance w i t h A r t i c l e V I X . A r t i c l e VI
1.
This P r o t o c o l s h a l l be s u b j e c t t o r a t i f i c a t i o n by t h e s i g n a t o r y S t a t e s .
2 . Any S t a t e which i s n o t a C o n t r a c t i n g S t a t e t o t h e Convention may r a t i f y t h i s P r o t o c o l i f a t t h e same time i t r a t i f i e s o r accedes t o t h e Convention i n accordance w i t h A r t i c l e 15 t h e r e o f .
3. I n s t r u m e n t s of r a t i f i c a t i o n s h a l l be d e p o s i t e d w i t h t h e Governments of t h e Union of S o v i e t S o c i a l i s t Republics, t h e United Kingdom of Great B r i t a i n and Northen I r e l a n d and t h e United S t a t e s of America or w i t h t h e I n t e r n a t i o n a l C i v i l A v i a t i o n O r g a n i z a t i o n , which a r e hereby d e s i g n a t e d t h e D e p o s i t a r i e s .
Article PI1
1 . A s soon a s t e n of t h e s i g n a t o r y S t a t e s have d e p o s i t e d t h e i r i n s t r u m e n t s of r a t i f i c a t i o n of t h i s P r o t o c o l , i t s h a l l e n t e r i n t o f o r c e between them on t h e t h i r t i e t h day a f t e r t h e d a t e of t h e d e p o s i t of t h e t e n t h i n s t r u m e n t of r a t i f i c a t i o n . I t s h a l l e n t e r i n t o f o r c e f o r each S t a t e which d e p o s i t s i t s instrument of r a t i f i c a t i o n a f t e r t h a t d a t e on t h e t h i r t i e t h day a f t e r d e p o s i t of i t s instrument of r a t i f i c a t i o n . 2 . A s soon a s t h i s P r o t o c o l e n t e r s i n t o f o r c e , i t s h a l l b e r e g i s t e r e d by t h e D e p o s i t a r i e s pursuant t o A r t i c l e 102 of t h e Charter of t h e United Nations and pursuant t o A r t i c l e 83 of t h e Convention on I n t e r n a t i o n a l C i v i l A v i a t i o n (Chicago, 1944).
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V I A Doc.No. 31
- 288 -
A r t i c l e VI11
1. T h i s - P r o t o c o l s h a l l , a f t e r i t has e n t e r e d i n t o f o r c e , b e . o p e n f o r a c c e s s i o n by any non-signatory S t a t e .

2. Any S t a t e which i s not a C o n t r a c t i n g S t a t e t o t h e Convention may accede t o t h i s P r o t o c o l i f a t t h e same time i t r a t i f i e s o r accedes t o t h e Convention i n accordance w i t h A r t i c l e 15 t h e r e o f .
3.
I n s t r u m e n t s of a c c e s s i o n s h a l l b e d e p o s i t e d w i t h t h e D e p o s i t a r i e s and a c c e s s i o n s h a l l t a k e e f f e c t on t h e t h i r t i e t h day a f t e r t h e d e p o s i t .
A r t i c l e IX
1. Any P a r t y t o t h i s P r o t o c o l may denounce i t by w r i t t e n n o t i f i c a t i o n addressed t o t h e D e p o s i t a r i e s .

2 . Denunciation s h a l l t a k e e f f e c t s i x months following t h e d a t e on which n o t i f i c a t i o n i s r e c e i v e d by t h e D e p o s i t a r i e s .
3 . Denunciation of t h i s P r o t o c o l s h a l l not of i t s e l f have t h e e f f e c t of d e n u n c i a t i o n of t h e Convent i o n .
Article X 1. The D e p o s i t a r i e s s h a l l promptly inform a l l s i g n a t o r y and acceding S t a t e s t o t h i s P r o t o c o l and a l l s i g n a t o r y and acceding S t a t e s t o t h e Convention:
( a ) o f t h e d a t e o f each s i g n a t u r e and t h e d a t e of d e p o s i t o f each i n s t r u m e n t of r a t i f i c a t i o n o f , o r a c c e s s i o n t o , t h i s P r o t o c o l , and
b) of t h e r e c e i p t of any n o t i f i c a t i o n of d e n u n c i a t i o n of t h i s P r o t o c o l and the date thereof.

2 . The D e p o s i t a r i e s s h a l l a l s o n o t i f y t h e S t a t e s r e f e r r e d t o i n p a r a g r a p h 1 of t h e d a t e on which t h i s P r o t o c o l e n t e r s i n t o f o r c e i n accordance w i t h A r t i c l e VII. DONE a t Montreal on t h e day of of t h e y e a r One Thousand Nine Hundred and Eighty-Eight, i n f o u r o r i g i n a l s , each b e i n g drawn up i n f o u r a u t h e n t i c t e x t s i n t h e E n g l i s h , French, Russian and Spanish languages.
I N WITNESS WHEREOF t h e undersigned P l e n i p o t e n t i a r i e s , b e i n g d u l y a u t h o r i z e d t h e r e t o by t h e i r Governments, have s i g n e d t h i s P r o t o c o l .

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4 . Denunciation of t h e Convention by a C o n t r a c t i n g S t a t e t o t h e Convention a s supplemented by t h i s P r o t o c o l s h a l l a l s o have t h e e f f e c t of d e n u n c i a t i o n of t h i s Protocol.
- 289 -
V I A Doc Mo. 3 2 i7121a8
INTERNATIONAL CONFERENCE O N A I R L A W
(Hontreal, 9
24 F e b r u a r y 1988)
RESOLUTION O THE INTERNATIONAL CONFERENCE ON A I R LAW F ( P r o p o s a l of t h e D e l e g a t i o n of t h e Union o f S o v i e t S o c i a l i s t R e p u b l i c s )
WHEREAS u n l a w f u l a c t s of v i o l e n c e a g a i n s t i n t e r n a t i o n a l c i v i l a v i a t i o n c o n t i n u e
s e r i o u s l y t o compromise t h e s a f e t y , r e g u l a r i t y and e f f i c i e n c y of a i r services;

WHEREAS t h e s a f e t y o f p e r s o n s and p r o p e r t y a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n r e q u i r e s c o n t i n u e d v i g i l a n c e , development and i m p l e m e n t a t i o n o f p o s i t i v e s a f e g u a r d s and a c t i o n s by t h e I n t e r n a t i o n a l C i v i l A v i a t i o n O r g a n i z a t i o n and a l l S t a t e s t o p r e v e n t and s u p p r e s s u n l a w f u l a c t s of v i o l e n c e a t s u c h a i r p o r t s ;
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CONFIRMING t h a t t h e i m p l e m e n t a t i o n o f t h e s e c u r i t y m e a s u r e s a d o p t e d by I C A O is a n e f f e c t i v e means of p r e v e n t i n g a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g international c i v i l aviation;

AWARE t h a t n o t w i t h s t a n d i n g a s s i s t a n c e g i v e n t o S t a t e s i n need ,some S t a t e s f a c e d i f f i c u l t i e s i n implementing p r e v e n t i v e m e a s u r e s b e c a u s e o f i n s u f f i c i e n t f i n a n c i a l and t e c h n i c a l r e s o u r c e s ;
THE CONFERENCE:
1.
Urges a l l S t a t e s on a n i n d i v i d u a l b a s i s and i n c o o p e r a t i o n w i t h o t h e r S t a t e s t o t a k e a l l p o s s i b l e s t e p s f o r t h e suppression of a c t s of v i o l e n c e a t a i r p o r t s serving i n t e r n a t i o n a l c i v i l a v i a t i o n including such preventive m e a s u r e s a s a r e r e q u i r e d u n d e r Annex 17 t o t h e C o n v e n t i o n on I n t e r n a t i o n a l C i v i l A v i a t i o n and by conforming p r o m p t l y , e f f e c t i v e l y and c o m p l e t e l y w i t h t h e i r r e s p o n s i b i l i t i e s and o b l i g a t i o n s u n d e r t h e Tokyo, The Hague and t h e M o n t r e a l C o n v e n t i o n s and t h e r e l e v a n t ICAO Assembly and C o u n c i l Resolutions r e l a t i n g t o t h e suppression of unlawful a c t s a g a i n s t t h e s a f e t y of c i v i l a v i a t i o n . Urges t h e C o u n c i l of I C A O t o c o n t i n u e t o a t t a c h t o p p r i o r i t y t o t h e a d o p t i o n of e f f e c t i v e measures f o r t h e p r e v e n t i o n of a c t s o f unlawful i n t e r f e r e n c e and t o k e e p up-to-date t h e p r o v i s i o n s o f Ann& 17 t o t h e Chicago C o n v e n t i o n t o t h i s end. Urges t h e i n t e r n a t i o n a l community t o [ c o n t i n u e ] [ i n c r e a s e ] t o e x t e n d t e c h n i c a l , f i n a n c i a l and m a t e r i a l a s s i s t a n c e t o S t a t e s i n n e e d o f s u c h a s s i s t a n c e t o improve s e c u r i t y a t t h e i r a i r p o r t s t h r o u g h b i l a t e r a l and m u l t i l a t e r a l e f f o r t , i n p a r t i c u l a r , t h r o u g h t h e ICAO T e c h n i c a l A s s i s t a n c e mechanism.
Not for Resale
2.
3.
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Not for Resale
- 291 VIA COC No. 33 17/2/88
I n t e r n a t i o n a l Conference on ---- r Law Ai (Montreal, 9
24 F e b r u a r y 1988)
Text P r e p a r e d bv t h e D r a f t i n g Committee
Article I
This P r o t o c o l s u p p l e m e n t s t h e Convention f o r t h e S u p p r e s s i o n Unlawful A c t s a g a i n s t t h e S a f e t y of C i v i l A v i a t i o n , s i g n e d a t M o n t r e a l 23 September 1971 ( h e r e i n a f t e r r e f e r r e d t o a s t h e C o n v e n t i o n ) , a n d , a s t h e P a r t i e s t o t h i s P r o t o c o l , t h e Convention and t h e P r o t o c o l s h a l l b e i n t e r p r e t e d t o g e t h e r as o n e c i n g l e i n s t r u m e n t .
of on between r e a d and
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Not for Resale
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Not for Resale

17/2/88
.
-_INTEENATIONAL CONFERENCE ON AIR LAW _--_ - ------(Montreal, 9
24 F e b r u a r y 1988)
. . I I -
REPORT OF THE CREDENTIALS COMIIXTTEE
-----
1. A t i t s F i r s t Meeting h e l d on 9 F e b r u a r y 1988 t h e C o n f e r e n c e e s t a b l i s h e d a C r e d e n t i a l s Committee and t h e D e l e g a t i o n s o f Colombia, Cte d I v o i r e , F i n l a n d , Hungary and I n d o n e s i a were i n v i t e d t o nominate members f o r t h i s Comrii t t e e
2. On 9 F e b r u a r y 1C88 a t 1230 hours t h e r e was t h e F i r s t Meeting o f the C r e d e n t i a l s Coiriniit t e e whicl: was composed as f o l lows:
Mrs. L. Rodriguez P e r e z (Colombia) Mr. S. R. Tahou ( C t e d I v o i r e ) ifs. P, K. H i l l o ( F i n l a n d ) Ms. E. K e c s k e n 6 t i (Hungary) Mr. Cahyo A d i ( I n d o n e s i a ) On t h e p r o p o s a l made by t h e D e l e g a t e o f C6te d I v o i e , t h e D e l e g a t e 2.1 of Colombia was e l e c t e d Chairman of the Committee.
3,
A t t h e Second b!eeting o t h e P l e n a r y o f t h e C o n f e r e n c e , t h e Chairnian
of t h e C r e d e n t i a l s Conmittee p r e s e n t e d a p r e l i m i n a r y r e p o r t and informed t h e
C o n f e r e n c e t h a t a s of 9 F e b r u a r y 1988 (1400 h o u r s ) 6 7 D e l e g a t i o n s had r e g i s t e r e d f o r t h e C o n f e r e n c e , and c r e d e n t i a l s i n d u e and p r o p e r form had been s u b m i t t e d by 45 of these D e l e g a t i o n s , 4. The Committee recommended t o t h e Conference, i n c o n f o r m i t y w i t h Rule 3 of t h e R u l e s of P r o c e d u r e , t h a t a l l t h e D e l e g a t i o n s r e g i s t e r e d b e p e r m i t t e d t o p a r t i c i p a t e i n t h e Conference pending r e c e i p t o f t h e i r c r e d e n t i a l s i n due f o r m ; t h e C o n f e r e n c e a c c e p t e d t h i s recommendation.
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On 16 and 17 F e b r u a r y 1988 t h e C r e d e c t i a l s Committee met c g a i n and 5. e x a n i n e d t h e c r e d e n t i a l s i s s u e d by t h e Governments of t h e f o l l o w i n g 78 S t a t e s and found t h e n t o b e i n due and p r o p e r form:
Argentine Republic, the Austral i a A u s t r i a , t h e R e p u b l i c of Belgium, t h e Kingdom o f B r a z i l , t h e F e d e r a t i v e R e p u b l i c of B u l g a r i a , t h e Peoples Republic of Byelorussian Soviet Social i s t Republic, t h e Canada C h i l e , t h e R e p u b l i c of China, t h e P e o p l e s Republic of Colombia, t h e R e p u b l i c o f Copyright International Civil AviationtOrganization e p u b l i c o f Costa Rica, h e R Provided by IHS under license with ICAO No reproduction or networking permitted without license from IHS b l i c o f Cte d I v o i r e , t h e Repu Cuba, t h e R e p u b l i c of Czechoslovak S o c i a l i s t R e p u b l i c , t h e Democratic P e o p l e s R e p u b l i c of Korea, t h e Denmark, t h e Kingdom of Ecuador, t h e R e p u b l i c o f Egypt, t h e Arab R e p u b l i c of Ethiopia Finland, t h e Republic of French Republic, t h e German Democratic R e p u b l i c , t h e Germany, t h e F e d e r a l R e p u b l i c of Ghana, t h e R e p u b l i c o f Guinea, t h e R e p u b l i c o f for Resale H e l l e n i cNot R e p u b l i c , t h e
- 294 V I A Doc No. 34
Hungarian Peoples Republic, t h e I c e l a n d , t h e Republic of I n d i a , t h e Republic of Indones i a , t h e Repub l i c of I r a n , t h e I s l a m i c Republic of I r a q , t h e Republic of Ireland I s r a e l , t h e S t a t e of I t a l i a n Republic , t h e Jamaica Japan Jordan, t h e Hashemite Kingdom o f Kenya, t h e Repub 1i c of Kuwait, t h e S t a t e of Lebanes e Repub 1i c , t h e L i b e r i a , t h e Republic of Libyan Arab J a m a h i r i y a , t h e S o c i a l i s t Peoples Madagascar, t h e Democratic Republic of Malawi, t h e Republic of Malaysia Malta, t h e Republic of Mexican S t a t e s , t h e United Netherlands, t h e Kingdom of t h e New Zealand Niger, t h e Republic of t h e N i g e r i a , t h e F e d e r a l Republic of
Norway, t h e Kingdom of Oman, t h e S u l t a n a t e of P a k i s t a n , t h e I s l a m i c Republic of Panama, t h e Republic of Peru, t h e Republic of P o l i s h Peoples Republic, t h e Portuguese Republic, t h e Repub l i c of Korea, t h e Romania, t h e S o c i a l i s t Republic of Saudi Arabia, t h e Kingdom of Senegal, t h e Repub,lic of Spain, t h e Kingdom of Sweden, t h e Kingdom o f S w i s s Confederation, t h e T u n i s i a , t h e Republic o f Turkey, t h e Republic of Ukrainian S o v i e t S o c i a l i s t Republic, t h e Union of S o v i e t S o c i a l i s t Republics, t h e United Arab Emirates, t h e United Kingdom o f Great B r i t a i n and Nort hern I r e l a n d , t h e United Republic of Tanzania, t h e United S t a t e s of America, t h e Venezuela, t h e Republic of Yugoslavia, t h e S o c i a l i s t F e d e r a l Republic of Z a i r e , t h e Republic of
F u r t hermo r e , t h e f o 1lowing e i g h t O s e r v e r De l e g a t i o n s have reg i s t ered b and p r e s e n t e d p r o p e r evidence of a c c r e d i t a t i o n t o t h e Conference: The United Nations ( U N ) The P a l e s t i n e L i b e r a t i o n Organization (PLO) A i r p o r t A s s o c i a t i o n s Coordinating Council (AACC) Arab C i v i l A v i a t i o n Council (ACAC) I n t e r n a t i o n a l A e r o n a u t i c a l F e d e r a t i o n (FAI) I n t e r n a t i o n a l A i r Transport Association (IATA) I n t e r n a t i o n a l F e d e r a t i o n of A i r Line P i l o t s A s s o c i a t i o n s (IFALPA) I n t e r n a t i o n a l Law A s s o c i a t i o n ( IL41
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time
Three a d d i t i o n a l D e l e g a t i o n s have n o t submitted c r e d e n t i a l s a t t h i s
Not for Resale
- 295 V I A Doc No. 35 17/2/88
(Montreal, 9
24 F e b r u a r y 1 9 8 8 )
DRAFT FINAL ACT

o f t h e I n t e r n a t i o n a l C o n f e r e n c e on A i r Law h e l d u n d e r t h e a u s p i c e s of t h e I n t e r n a t i o n a l C i v i l A v i a t i o n O r g a n i z a t i o n in F e b r u a r y 1988 The P l e n i p o t e n t i a r i e s a t t h e I n t e r n a t i o n a l C o n f e r e n c e on A i r Law h e l d u n d e r t h e a u s p i c e s o f t h e I n t e r n a t i o n a l C i v i l A v i a t i o n O r g a n i z a t i o n m e t a t M o n t r e a l from 9 t o 24 F e b r u a r y 1988 f o r t h e p u r p o s e o f c o n s i d e r i n g d r a f t a r t i c l e s p r e p a r e d b y t h e L e g a l Committee of t h e I n t e r n a t i o n a l C i v i l A v i a t i o n O r g a n i z a t i o n t o s u p p l e m e n t t h e C o n v e n t i o n f o r t h e S u p p r e s s i o n o f Unlawful Acts a g a i n s t t h e S a f e t y o f C i v i l A v i a t i o n , s i g n e d a t M o n t r e a l on 23 September 1971. The Governments of t h e f o l l o w i n g 81 S t a t e s were r e p r e s e n t e d a t t h e C o n f e r e n c e : A l g e r i a , t h e Peoples Democratic Republic of Argentine Republic, t h e Australia A u s t r i a , t h e Repub l i c o f Be l g ium, t h e Kingdom o f E r a z i l , t h e F e d e r a t i v e R e p u b l i c of B u l g a r i a , t h e P e o p l e s R e p u b l i c of Eye l o r u s s i a n S o v i e t S o c i a 1i s t Repub l i c , t h e Canada C h i l e , t h e Republic of China, t h e Peoples Republic of Colombia, t h e R e p u b l i c of Costa Rica, t h e Republic of Cte d I v o i r e , t h e Republic of Cuba, t h e R e p u b l i c of Czechoslovak S o c i a l i s t R e p u b l i c , t h e D e m o c r a t i c P e o p l e s R e p u b l i c o f Korea, t h e Denmark , t h e K ingdom o f Ecuador, t h e Republic of Egypt, t h e Arab R e p u b l i c o f Ethiopia F i n l a n d , t h e R e p u b l i c of F r e n c h Repub 1i c , t h e German D e m o c r a t i c R e p u b l i c , t h e Germany, F e d e r a l R e p u b l i c o f Ghana, t h e R e p u b l i c of Guinea, t h e R e p u b l i c o f
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- 296 V I A Doc No. 35

.
He 1l e n i c Repub 1i c , t h e Hungarian P e o p l e s Republic, t h e I c e l a n d , t h e R e p u b l i c of I n d i a , t h e R e p u b l i c of I n d o n e s i a , t h e Republic o f I r a n , t h e I s l a m i c R e p u b l i c of I r a q , t h e R e p u b l i c of Ireland I s r a e l , t h e S t a t e of I t a l i a n Republic , t h e Jama i c a Japan J o r d a n , t h e Hashemite Kingdom o f Kenya , t h e Repub 1 i c o f K u w a i t , t h e S t a t e of Lebanese Republic, t h e L i b e r i a , t h e R e p u b l i c of L i b y a n Arab J a m a h i r i y a , t h e S o c i a l i s t P e o p l e s Luxembourg , t h e Grand Duchy of Madagascar, t h e Democratic R e p u b l i c of M a l a w i , t h e Republic of M laysi a a H a i t a , t h e R e p u b l i c of Mexican S t a t e s , t h e U n i t e d N e t h e l n d s , t h e Kingdom o f t h e New Zealand N i g e r , t h e R e p u b l i c of t h e N i g e r i a , t h e F e d e r a l R e p u b l i c of Norway, t h e Kingdom o f Oman, t h e S u l t a n a t e o f P a k i s t a n , t h e I s l a m i c R e p u b l i c of Panama, t h e R e p u b l i c of P e r u , t h e R e p u b l i c of P o l i s h Peoples Republic, t h e P o r t u g u e s e Republic , t h e R e p u b l i c of K o r e a , t h e Romania, t h e S o c i a l i s t R e p u b l i c of S a u d i A r a b i a , t h e Kingdom o f S e n e g a l , t h e R e p u b l i c of S p a i n , t h e Kingdom of Sweden, t h e Kingdom o f Swiss C o n f e d e r a t i o n , t h e Togolese Republic, t h e T u n i s i a , t h e Repub 1i c o f Turkey, t h e R e p u b l i c of Ukrainian Soviet S o c i a l i s t Republic, t h e Union o f S o v i e t S o c i a l i s t R e p u b l i c s , t h e U n i t e d Arab E m i r a t e s , t h e U n i t e d Kingdom o f G r e a t B r i t a i n and N o r t h e r n I r e l a n d , t h e United Republic of Tanzania, t h e United S t a t e s of A m e r i c a , t h e V e n e z u e l a , t h e R e p u b l i c of Copyright International Civil Aviation Organization t h e S o c i a l i s t F e d e r a l Republic of Provided by IHS under license with ICAOY u g o s l a v i a , No reproduction or networking permitted without license from IHS Not for Resale Z a i r e , t h e R e p u b l i c of
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The Conference unanimously e l e c t e d a s P r e s i d e n t Mr. P . K i r s c h (Canada) and f u r t h e r unanimously e l e c t e d a s V i c e - p r e s i d e n t s Messrs. D . K . Ameyo ( K e n y a ) , J. S o b i e r a j ( P o l a n d ) , Z . Abdul ( M a l a y s i a ) and A . Sanchez G u t i e r r e z (Cuba). The S e c r e t a r y G e n e r a l o f t h e Conference was M r . Yves Lambert, S e c r e t a r y G e n e r a l of t h e I n t e r n a t i o n a l C i v i l A v i a t i o n O r g a n i z a t i o n . Dr. M. M i l d e , D i r e c t o r of t h e Legal Bureau of t h e I n t e r n a t i o n a l C i v i l A v i a t i o n O r g a n i z a t i o n , was t h e E x e c u t i v e S e c r e t a r y of t h e C o n f e r e n c e ; h e was a s s i s t e d by D r . M. P o u r c e l e t , P r i n c i p a l Legal O f f i c e r , D r . E.W. F a l l e r , S e n i o r L e g a l O f f i c e r and Mr. G.M. Kakkar, L e g a l O f f i c e r of t h e O r g a n i z a t i o n and by o t h e r o f f i c i a l s o f t h e Organization. The Conference e s t a b l i s h e d a Commission on t h e Whole and t h e f o l l o w i n g Commit t e e s :
CREDENTIALS CO WI TT E E
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- 297 -
The P a l e s t i n e L i b e r a t i o n O r g a n i z a t i o n w a s r e p r e s e n t e d by a n O b s e r v e r . The U n i t e d N a t i o n s was r e p r e s e n t e d by a n O b s e r v e r . The f o l l o w i n g I n t e r n a t i o n a l O r g a n i z a t i o n s were r e p r e s e n t e d by O b s e r v e r s : A i r p o r t A s s o c i a t i o n s Coordinating Council (AACC) Arab C i v i l A v i a t i o n C o u n c i l (ACAC) I n t e r n a t i o n a l A e r o n a u t i c a l F e d e r a t i o n (FAI) I n t e r n a t i o n a l A i r T r a n s p o r t A s s o c i a t i o n (IATA) I n t e r n a t i o n a l F e d e r a t i o n of A i r L i n e P i l o t s ' A s s o c i a t i o n s (IFALPA) I n t e r n a t i o n a l Law A s s o c i a t i o n ( I L A )
Chairman: Itembers:
N r s . L . R o d r i g u e z P e r e z (Colombia)
Tahou ( C t e d ' I v o i r e ) Hillo (Finland) MS. E . Kecskemti (Hungary) Mr. C . A.di ( I n d o n e s i a ) )fr. S . R .
MS. P.K.
DRAFTING COMMITTEE
Chairman: Members :
F r . L . O a t e s ( U n i t e d Kingdom)
Ilr F . E . Dozo ( A r g e n t i n a 1 Fir. R .L. B o c a l a n d r o ( A r g e n t i n a ) Flr. H. Winkler ( A u s t r i a ) )Ir, C . Tepavitcharov ( B u l g a r i a ) Fir. J. Ansted ( C h i l e ) M r . .J. Dupouy ( C h i l e ) I k s . Xue Iianqin ( C h i n a ) P r . G. O r t e g a Hernandez (Colonibia) hrs. M. B a r b i n ( F r a n c e ) Mrs. Y. Ramis ( F r a n c e ) M r . H.W. Thau ( F e d e r a l R e p u b l i c o f Germany)
Not for Resale
- 298 V I A Doc No. 35
M r . H. Graumann ( F e d e r a l R e p u b l i c o f Germany) M r . A.A. Golrounia ( I s l a m i c Republic of I r a n ) M r . K.O. R a t t r a y ( J a m a i c a ) M r . T. F u j i t a ( J a p a n ) Mr. A . Bos ( t h e N e t h e r l a n d s ) \ir. M . Ruud (Norway) Mrs. L.H. G a r c i a ( P e r u ) Mr. A . C o n t r e r a s ( P e r u ) Mr. Y . D i a l l o ( S e n e g a l ) M r . B. Castejon (Spain) M r . A . Ben G u i r a t ( T u n i s i a ) M r . A .R. E l Bicheri (Tunisia) Mr. V . A . Podberezny (USSR) M r . J. S i d d l e ( U n i t e d Kingdom) M r . B.K. Mwakisu ( U n i t e d R e p u b l i c o f T a n z a n i a ) M r . S.M. W i t t e n ( U n i t e d S t a t e s ) Ms. I.E. Howie ( U n i t e d S t a t e s ) M r . R. Yepez ( V e n e z u e l a ) M r . C. F r a i n o (Venezuela)
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F o l l o w i n g i t s d e l i b e r a t i o n s , t h e C o n f e r e n c e a d o p t e d [ b y c o n s e n s u s ] t h e t e x t of a P r o t o c o l f o r t h e S u p p r e s s i o n o f Unlawful A c t s o f V i o l e n c e a t A i r p o r t s S e r v i n g I n t e r n a t i o n a l C i v i l A v i a t i c n , Supplementary t o t h e C o n v e n t i o n f o r t h e S u p p r e s s i o n o f Unlawful A c t s a g a i n s t t h e S a f e t y o f C i v i l A v i a t i o n , Done a t M o n t r e a l on 23 September 1 9 7 1 . The s a i d P r o t o c o l h a s been opened o r s i g n a t u r e a t M o n t r e a l on t h i s d a y . The C o n f e r e n c e f u r t h e r m o r e a d o p t e d [by c o n s e n s u s ] t h e f o l l o w i n g R e s o l u t i o n s :
DONE a t M o n t r e a l on t h e t w e n t y - f o u r t h day of F e b r u a r y o f t h e y e a r One Thousand Nine Hundred and E i g h t y - e i g h t i n f o u r a u t h e n t i c t e x t s i n t h e E n g l i s h , F r e n c h , R u s s i a n and S p a n i s h l a n g u a g e s i n a s i n g l e copy which s h a l l b e d e p o s i t e d w i t h t h e I n t e r n a t i o n a l C i v i l A v i a t i o n O r g a n i z a t i o n and a c e r t i f i e d copy of which s h a l l b e d e l i v e r e d by t h e s a i d O r g a n i z a t i o n t o e a c h o f t h e Governments r e p r e s e n t e d a t t h e Corif e r e n c e .
I WITNESS WHEREOF t h e D e l e g a t e s have s i g n e d t h i s F i n a l A c t . N
Not for Resale
- 299 VIA Doc No. 36 17/2/88
INTEWATIONAL CONFERENCE ON AIR L A W (Frontreal, 9 - 24 February 1988) Draft Resolut ion presented by ---___- Argentina and co-sponsored by Brazil, Chile, Colombia, Costa Rica, Ecuador, Panama, Peru and Spain Recommendation to Contracting States relati-ve to the adoption of domestic legislation aimed at the classification of offences committed at airports serving international civil aviation and the establishment of severe penalties therefor. CONSIDERING that the Protocol to amend the Convention for the Suppression of Unlawful Acts against the Safety of Civil Aviation (Montreal, 1971) adopted at Montreal on - February 1988, provides for the classification of offences committed at airports serving international civil aviation; CONSIDERING that Article 3 of the Montreal Convention of 1971 provides that: "Each Contracting State undertakes to make the offences mentioned in Article 1 punishable by severe penalties."; CONSIDERING that the precept set forth in the foregoing Considering clause is equally applicable to the offences Contemplated in the above-mentioned Protocol,
THE INTERNATIONAL CONFERENCE ON AIR LAW

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RESOLVES
1. TO RECOMMEND to Contracting States that they adopt appropriate measures to establish in their domestic legislation a classification of the offences contemplated in the Protocol to amend the Convention for the Suppression of Unlawful Acts against the Safety of Civil Aviation (Montreal, 1971) adopted at Montreal on - February 1988, and to impose penalties proportional to the seriousness of these offences.
2. TO INSTRUCT the Secretary General of ICAO to bring this Resolution to the attention of the Contracting States and the Council of ICAO as soon as possible.
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(Montreal, 9
2 4 F e b r u a r y 1988)
Coniments o f Kenya
The delegation of the Republic of Kenya offers the comments appearing hereunder on the issues before this Conference. 1. Form of the Instrument The 26th Session of the Legal Committee recommended that the new Instrument should take the form of an additional protocol to the Montreal Convention of 1971. Our delegation supports this recommendation. We feel that the Montreal Convention.left a Lacuna with respect to safety of airports serving international civil aviation. To the extent that the new instrument aims at covering the aforesaid lacuna, we feel that both the title and the preambular provisions of the Instrument should be adjusted to reflect this objective and to show that it is additional to and not an amendment of the Montreal Convention.
2.
%e
Qualifier at the end of Article 1 bis -
This delegation does not support the proposal put forward by the United Kingdom delegation that the intention of the offender to endanger the safety of airport should be reflected in the qualifier. Our delegation is of the view that all the necessary legal elements of a crime are contained in Article 1 - as drafted by the Legal Committee. In our view, the unlawful bis and intentional commission of an act of violence against persons at an airport or the unlawful and intentional destruction of facilities at such airport constitutes crimes in themselves irrespective of the intention as to consequences of such act or destruction. In our criminal jurisprudence a person must be presumed to have intended the natural consequences flowing from his action. We cannot envisage any other consequence that will flow from an intended violent act at an airport serving international civil aviation targeting the persons or facilities thereat except endangering the safe operation of that airport. The proposal of the United Kingdom in our view puts the burden on the prosecution to prove the intention t o commit
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the offence and also the intention to endanger the safe operation of the
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airport. Our delegation sees no legal justification for such doubleintention. In any case this will make the burden of proof heavy and tilt the scale in favour of the offender.
3.
Jurisdiction and Extradition
This delegation supports the Legal Committee's observation that the delicate balance between prosecution and extradition established by the Montreal Convention of 1971 should not be upset by an instrument which is an additional protocol to that Convention. To the extent that the new instrument creates offences additional to those existing in the Montreal Convention, it is inevitable, from the legal point of view, that jurisdiction on the new offences should be established by the new instrument. Our interpretation of the proposed paragraph 2 - of Article 5 is to place an bis obligation on the Contracting States to establish jurisdiction in respect of the new offences in the 'draft Protocol. This, too, is our interpretation of Article 5 of the Montreal Convention that it creates a obligation on n Contracting States to establish appropriate jurisdiction in respect of the offences created by that Convention.
In our view, the draft protocol should be interpreted in accordace with the established principles of treaty interpretation. Such principles require that the new instrument be interpreted in the light of its objectives. The objective of the new instment is to create new offences committed at an airport serving international civil aviation. Such an airport has a clear geographical location situated in a particular jurisdiction. It is in this context that the Legal Committee arrived at the formulation of the present Article III of the draft Protocol. We feel that the two jurisdictions envisaged by that article are practical and indeed necessary if the new instrument has to achieve its desired goal of no-safe-heaven for potential perpetrators of the offences envisaged in the instrument. 'To enlarge the number of jurisdictions will inevitably bring into play the issue of priorities i the jurisdictions. In our view, if priorities are introduced, n
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delays in dealing with the offender will be inevitable. Indeed, the introduction of such priorities will leave it to the State where the offender is apprehended to decide, subjectively, if, when, and where to extradite the offender if that State does not prefer to prosecute him/her. Should this happen, the balance on jurisdiction and extradition will be disturbed. In our view, the introduction of an aircraft not in service in the new instrument does not alter the focus of the new instrument viz safety at airports. Montreal Convention t o o , has its focus point and hence its jurisdictional basis and emphasis should surely be different from that envisaged in the new instrument. 4. Preventive measures Our delegation has given careful thought to this issue. We are convinced that there is no necessity of transforming the detailed technical preventive measures spelt out in Annex 17 to the Chicago Convention into specific treaty obligations of Contracting States. We believe that aiport security is a primary concern of all Member States, and therefore Member States should only be urged to ensure airport security by, inter alia, complying with the provisions of Annex 17 and the relevant security manuals. The flexibility of these two are indeed desirable for they can accommodate new security requirements without the necessity of amending existing and binding legal instruments. It is the view of this delegation, however, that Co-ordinated technical assistance should be given to CoRtracting States who so desparately need it to improve aviation security. We propose that the issue of preventive measures and increased technical assistance to developing countries should be covered in a Resolution of this Conference.
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5.
Participation of States not parties t o the Montreal Convention
G r delegation is of the view that a State which accedes t o t h i s protocol u should likewise accede t o the Montreal Convention. W therefore welcome e the proposed drafting of a r t i c l e V I ( 2 ) of the protocol as put forward by e the Secretariat. W agree with the advice given by the Director of the Legal Bureau a t the 26th Session of the Legal Committee that it i s the policy of t h i s Organization t o exhort a l l Contracting States t o become u p a r t i e s t o the Tokyo, Hague and Montreal Conventions. O r delegation considers it a departure from t h a t policy i f we were t o allow a Member State t o r a t i f y o r accede t o the new instrument without a t the same time ratifying o r acceding t o the Montreal Convention.
6.
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Aircraft not i n service a t an airport
O r delegation considers safety of airports serving international c i v i l u
aviation the primary focus of the new instrument. In our view, we are therefore talking of the safety not only of passengers and other persons present at such airport but a l s o of the f a c i l i t i e s and equipment thereat including an a i r c r a f t not i n service. The smooth and e f f i c i e n t functioning of the airport w i l l surely be disrupted i f an attack were t o be mounted t o any aircraft not i n service at t h a t airport. I t is f o r t h i s reason t h a t t h i s delegation w i l l support such drafting t h a t w i l l make attacks on such a i r c r a f t s an international crime within the ambit of the new Instrument. W must focus on the safety of persons and property a t a i r p o r t s serving e international c i v i l aviation.
7.
Threats
O r delegation believes t h a t there is a marked difference, i n law, between u
an attempt and a threat. W also believe t h a t i n criminal jurispmdence, e a threat t o commit a crime manifested wiEh s u f f i c i e n t intention t o carry
e the same out, constitutes a d i s t i n c t criminal offence. W therefore support the view that threats should be s u f f i c i e n t l y and separately covered as a crime in the new instrument.
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DRAFT RESOLUTION OF THE INTERNATIONAL CONFERENCE ON A I R L A W ( T e x t r e s u l t i n g from t h e d i s c u s s i o n i n t h e Commission of t h e Whole)
WHEREAS u n l a w f u l a c t s of v i o l e n c e a g a i n s t i n t e r n a t i o n a l c i v i l a v i a t i o n c o n t i n u e
s e r i o u s l y t o compromise t h e s a f e t y , r e g u l a r i t y and e f f i c i e n c y o f a i r services;
WHEREAS t h e s a f e t y of p e r s o n s and p r o p e r t y a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l
c i v i l a v i a t i o n r e q u i r e s c o n t i n u e d v i g i l a n c e , development and i m p l e m e n t a t i o n of p o s i t i v e s a f e g u a r d i n g a c t i o n s by t h e I n t e r n a t i o n a l C i v i l A v i a t i o n O r g a n i z a t i o n and a l l S t a t e s t o p r e v e n t and s u p p r e s s u n l a w f u l . a c t s of violence a t -such a i r p o r t s ;
CONFIRMING t h a t t h e i m p l e m e n t a t i o n of t h e s e c u r i t y m e a s u r e s a d o p t e d by ICAO i s a n e f f e c t i v e means o f p r e v e n t i n g a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g international c i v i l aviation;
AWARE t h a t n o t w i t h s t a n d i n g a s s i s t a n c e g i v e n t o S t a t e s i n n e e d , some S t a t e s , i n p a r t i c u l a r d e v e l o p i n g S t a t e s , s t i l l f a c e d i f f i c u l t i e s i n implementing p r e v e n t i v e m e a s u r e s b e c a u s e of i n s u f f i c i e n t f i n a n c i a l and t e c h n i c a l resources;

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THE CONFERENCE :
1.
Urges a l l S t a t e s on a n i n d i v i d u a l b a s i s and i n c o o p e r a t i o n w i t h o t h e r S t a t e s t o t a k e a l l p o s s i b l e m e a s u r e s f o r t h e s u p p r e s s i o n of a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n i n c l u d i n g such p r e v e n t i v e m e a s u r e s a s a r e r e q u i r e d o r recommended u n d e r Annex 1 7 t o t h e C o n v e n t i o n on I n t e r n a t i o n a l C i v i l A v i a t i o n and by conforming p r o m p t l y , e f f e c t i v e l y and c o m p l e t e l y w i t h t h e i r r e s p o n s i b i l i t i e s and o b l i g a t i o n s u n d e r t h e Tokyo, The Hague and t h e M o n t r e a l C o n v e n t i o n s and t h e r e l e v a n t I C A O Assembly and C o u n c i l R e s o l u t i o n s r e l a t i n g t o t h e s u p p r e s s i o n of u n l a w f u l a c t s a g a i n s t t h e s a f e t y of c i v i l a v i a t i o n . Urges t h e C o u n c i l of I C A O t o c o n t i n u e t o a t t a c h t o p p r i o r i t y t o t h e a d o p t i o r o f e f f e c t i v e m e a s u r e s f o r t h e p r e v e n t i o n o f a c t s of u n l a w f u l i n t e r f e r e n c e and t o k e e p up-to-date t h e p r o v i s i o n s o f Annex 1 7 t o t h e Chicago C o n v e n t i o n t o t h i s end.
2.
Urges t h e i n t e r n a t i o n a l community t o c o n s i d e r i n c r e a s i n g t e c h n i c a l , f i n a n c i a l and m a t e r i a l a s s i s t a n c e t o S t a t e s i n n e e d o f s u c h a s s i s t a n c e t o improve s e c u r i t y a t t h e i r a i r p o r t s t h r o u g h b i l a t e r a l and m u l t i l a t e r a l e f f o r t , i n p a r t i c u l a r , t h r o u g h t h e I C A O T e c h n i c a l A s s i s t a n c e mechanism. Copyright International Civil Aviation Organization
3.
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INTERNATIONAL CONFERENCE ON A I R LAW (Montreal, 9
24 F e b r u a r y 1 9 8 8 )
DRAFT FINAL ACT

o f t h e I n t e r n a t i o n a l C o n f e r e n c e on A i r Law h e l d u n d e r t h e a u s p i c e s of t h e I n t e r n a t i o n a l C i v i l A v i a t i o n O r g a n i z a t i o n i n F e b r u a r y 1988 ( T e x t r e s u l t i n g from t h e d i s c u s s i o n i n t h e Commission o f t h e Whole)
The P l e n i p o t e n t i a r i e s a t t h e I n t e r n a t i o n a l C o n f e r e n c e on A i r Law h e l d u n d e r t h e a u s p i c e s of t h e I n t e r n a t i o n a l C i v i l A v i a t i o n O r g a n i z a t i o n m e t a t M o n t r e a l from 9 t o 24 F e b r u a r y 1988 o r t h e p u r p o s e of c o n s i d e r i n g d r a f t a r t i c l e s p r e p a r e d by t h e L e g a l Committee o f t h e I n t e r n a t i o n a l C i v i l A v i a t i o n O r g a n i z a t i o n t o supplement t h e C o n v e n t i o n f o r t h e S u p p r e s s i o n of Unlawful A c t s a g a i n s t t h e S a f e t y of C i v i l A v i a t i o n , s i g n e d a t Y o n t r e a l c n 23 September 1 9 7 1 .

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T h e Governments o f t h e f o l l o w i n g 81 S t a t e s were r e p r e s e n t e d a t t h e C o n f e r e n c e :
A l g e r i a , t h e P e o p l e s Democratic R e p u b l i c of Argentine Republic, t h e Austral ia A u s t r i a , t h e R e p u b l i c of Belgium, t h e Kingdom of B r a z i l , t h e F e d e r a t i v e Republic of B u l g a r i a , t h e P e o p l e s R e p u b l i c of Bye l o r u s s i a n S o v i e t S o c i a 1i s t Re pub 1i c , t h e Canada C h i l e , t h e R e p u b l i c of C h i n a , t h e P e o p l e s R e p u b l i c of Colombia, t h e R e p u b l i c o f Costa Rica, t h e Republic of Cte d I v o i r e , t h e Republic of Cuba, t h e R e p u b l i c of Czechos l o v a k Soc i a 1i s t Re pub 1i c , t h e D e m o c r a t i c P e o p l e s R e p u b l i c of K o r e a , t h e Denmark, t h e Kingdom of E c u a d o r , t h e R e p u b l i c of E g y p t , t h e Arab R e p u b l i c o f E t h i o p i a , P e o p l e s D e m o c r a t i c R e p u b l i c of Finland, t h e Republic of French Republic, t h e German D e m o c r a t i c R e p i i b l i c , t h e Germany, t h e F e d e r a l R e p u b l i c o f Ghana, t h e Repub 1i c o f G u i n e a , t h e R e p u b l i c of
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H e l l e n i c Republic, t h e Hungarian People s Re pub l i c , t h e I c e l a n d , t h e Republic of I n d i a , t h e Republic of I n d o n e s i a , t h e Republic of I r a n , t h e I s l a m i c Republic of I r a q , t h e Republic of Ireland I s r a e l , t h e S t a t e of It a l i a n Repub l i c , t he Jamaica Japan Jordan, t h e Hashemite Kingdom of Kenya, t h e Republic of Kuwait, t h e S t a t e of Lebanese Republic, t h e L i b e r i a , t h e Republic of Libyan Arab Jamahiriya, t h e S o c i a l i s t Peoples Luxembourg, t h e Grand Duchy of Madagascar, t h e Democratic Republic of Malawi, t h e Republic of Malaysia Malta, t h e Republic of Mexican S t a t e s , t h e United N e t h e r l a n d s , t h e Kingdom of t h e New Zeaiand Niger, t h e Republic of t h e N i g e r i a , t h e F e d e r a l Republic of Norway, t h e Kingdom of Oman, t h e S u l t a n a t e o f P a k i s t a n , t h e I s l a m i c Republic of Panama, t h e Repub 1i c of Peru, t h e Republic of P o l i s h Peoples Republic, t h e Portuguese Republic, t h e Republic of Korea, t h e Romania, t h e S o c i a l i s t Republic of Saudi A r a b i a , t h e Kingdom of Senegal, t h e Republic of S p a h , t h e Kingdom of Sweden, t h e Kingdom of Swiss C o n f e d e r a t i o n , t h e Togolese Republic, t h e T u n i s i a , t h e Republic of Turkey, t h e Republic of Ukrainian S o v i e t S o c i a l i s t Republic, t h e Union of S o v i e t S o c i a l i s t Republics, t h e United Arab Emirates, t h e United Kingdom of Great B r i t a i n and Ncrthern I r e l a n d , t h e United Republic of Tanzania, t h e United S t a t e s of America, t h e Venezuela, t h e Republic of Yugoslavia, t h e S o c i a l i s t F e d e r a l Republic of Z a i r e , t h e Republic of
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The P a l e s t i n e L i b e r a t i o n O r g a n i z a t i o n was r e p r e s e n t e d by a n O b s e r v e r . The U n i t e d N a t i o n s was r e p r e s e n t e d by a n o b s e r v e r . The f o . l l o w i n g I n t e r n a t i o n a l O r g a n i z a t i o n s were r e p r e s e n t e d by O b s e r v e r s : A i r p o r t A s s o c i a t i o n s C o o r d i n a t i n g C o u n c i l (AACC) Arab C i v i l A v i a t i o n C o u n c i l (ACAC) I n t e r n a t i o n a l A e r o n a u t i c a l F e d e r a t i o n (FA11 I n t e r n a t i o n a l A i r Transport Association (IATA) I n t e r n a t i o n a l F e d e r a t i o n of A i r L i n e P i l o t s A s s o c i a t i o n s (IFALPA) I n t e r n a t i o n a l Law A s s o c i a t i o n (ILA) The C o n f e r e n c e unanimously e l e c t e d a s P r e s i d e n t M r . P h i l i p p e K i r s c h ( C a n a d a ) . I t f u r t h e r unanimously e l e c t e d a s V i c e - p r e s i d e n t s Messrs. D.K. Ameyo ( K e n y a ) , J. S o b i e r a j ( P o l a n d ) , 2. Abdul ( M a l a y s i a ) and A. Sanchez G u t i e r r e z ( C u b a ) . The S e c r e t a r y G e n e r a l of t h e C o n f e r e n c e was Mr. Yves Lambert, S e c r e t a r y G e n e r a l of t h e I n t e r n a t i o n a l C i v i l A v i a t i o n O r g a n i z a t i o n . D r . M. M i l d e , D i r e c t o r of t h e L e g a l Bureau of t h e I n t e r n a t i o n a l C i v i l A v i a t i o n O r g a n i z a t i o n , was t h e E x e c u t i v e S e c r e t a r y o f t h e C o n f e r e n c e ; he was a s s i s t e d by D r . M. P o u r c e l e t , P r i n c i p a l L e g a l O f f i c e r , D r . E.W. F a l l e r , S e n i o r L e g a l O f f i c e r and M r . G.M. Kakkar, L e g a l O f f i c e r of t h e O r g a n i z a t i o n and by o t h e r o f f i c i a l s of t h e Organizat ion. The C o n f e r e n c e e s t a b l i s h e d a Commission of t h e Whole, whose Chairman was t h e P r e s i d e n t of t h e C o n f e r e n c e , and t h e f o l l o w i n g Committees: CREDENTIALS COMMITTEE Chairman: Members:
Mrs. L. Rodriguez P e r e z (Colombia)

Cte d I v o i r e Finland Hungary Indonesia
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DRAFTING COMNITTEE Chairman:
M r . L. O a t e s ( U n i t e d Kingdom)
Members : A r g e n t i n a Austria Bulgar i a Chile China Czechos l o v a k S o c i a 1i s t R e p u b l i c Egypt France F e d e r a l R e p u b l i c of Germany
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India I s l a m i c Republic of I r a n Jamaica Japan t h e Kingdom of t h e Netherlands Norway Peru Senegal Spain Tunis i a Union of Soviet S o c i a l i s t Republics United Kingdom United Republic of Tanzania United S t a t e s Venez u e 1a Following i t s d e l i b e r a t i o n s , t h e Conference adopted [by consensus] t h e t e x t of a P r o t o c o l f o r t h e Suppression of Unlawful Acts of Violence a t A i r p o r t s Serving I n t e r n a t i o n a l C i v i l A v i a t i o n , Supplementary t o t h e Convention f o r t h e Suppression of Unlawful Acts a g a i n s t t h e S a f e t y of C i v i l A v i a t i o n , Done a t Montreal on 23 September 1971. The s a i d P r o t o c o l has been opened f o r s i g n a t u r e a t Montreal on t h i s day. The Conference f u r t h e r m o r e adopted [by consensus] t h e f o l l o w i n g R e s o l u t i o n s :
A
I N WITNESS WHEREOF t h e Delegates of S t a t e s d u l y a u t h o r i z e d t h e r e t o have signed t h i s Final A c t .

DONE a t Montreal on t h e twenty-fourth day of February of t h e y e a r One Thousand Nine Hundred and Eighty-eight i n f o u r a u t h e n t i c t e x t s i n t h e E n g l i s h , French, Russian and Spanish languages i n a s i n g l e copy which s h a l l be d e p o s i t e d w i t h t h e I n t e r n a t i o n a l C i v i l A v i a t i o n O r g a n i z a t i o n and a c e r t i f i e d copy of which s h a l l be d e l i v e r e d by t h e s a i d O r g a n i z a t i o n t o each of t h e Governments r e p r e s e n t e d a t t h e Conference.
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24 F e b r u a r y 1 9 8 8 )
T e x t s p r e p a r e d by t h e D r a f t i n g Committee P r o t o c o l f o r t h e S u p p r e s s i o n of Unlawful Acts o f V i o l e n c e a t A i r p o r t s S e r v i n g I n t e r n a t i o n a l C i v i l A v i a t i o n , Supplementary t o t h e C o n v e n t i o n f o r t h e S u p p r e s s i o n o f Unlawful Acte a g a i n s t t h e S a f e t y of C i v i l A v i a t i o n , Done a t M o n t r e a l on 23 September 1971
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THE STATES PARTIES TO THIS PROTOCOL

[CONCERNED a b o u t t h e e s c a l a t i o n of t e r r o r i s t a c t i v i t i e s i n t h e w o r l d ; ]
CONSIDERING t h a t u n l a w f u l a c t s o f v i o l e n c e which e n d a n g e r o r a r e l i k e l y t o e n d a n g e r t h e s a f e t y of p e r s o n s a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n o r which j e o p a r d i z e t h e s a f e o p e r a t i o n o f s u c h a i r p o r t s undermine t h e c o n f i d e n c e of t h e p e o p l e s o f t h e world i n s a f e t y a t s u c h a i r p o r t s and d i s t u r b t h e s a f e and o r d e r l y conduct of c i v i l a v i a t i o n f o r a l l S t a t e s ; CONSIDERING t h a t t h e o c c u r r e n c e o f s u c h a c t s i s a m a t t e r o f g r a v e c o n c e r n t o t h e i n t e r n a t i o n a l community and t h a t , f o r t h e p u r p o s e o f d e t e r r i n g s u c h a c t s , t h e r e i s a n u r g e n t need t o p r o v i d e a p p r o p r i a t e m e a s u r e s f o r punishment of o f f e n d e r s ; CONSIDERING t h a t i t i s n e c e s s a r y t o a d o p t p r o v i s i o n s s u p p l e m e n t a r y t o t h o s e o f t h e C o n v e n t i o n f o r t h e S u p p r e s s i o n o f Unlawful A c t s a g a i n s t t h e S a f e t y of C i v i l A v i a t i o n , done a t M o n t r e a l on 23 September 1971, t o d e a l w i t h s u c h unlawful a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n , HAVE AGREED AS FOLLOWS:
Article I
T h i s P r o t o c o l s u p p l e m e n t s t h e Convention f o r t h e S u p p r e s s i o n of Unlawful A c t s a g a i n s t t h e S a f e t y o f C i v i l A v i a t i o n , done a t M o n t r e a l on 23 September 1971 ( h e r e i n a f t e r r e f e r r e d t o a s " t h e C o n v e n t i o n " ) , a n d , a s between t h e P a r t i e s t o t h i s P r o t o c o l , t h e C o n v e n t i o n and t h e P r o t o c o l s h a l l be r e a d and i n t e r p r e t e d t o g e t h e r a s . o n e s i n g l e i n s t r u m e n t .
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-312 c
VIA Doc No. 40
A r t i c l e II
1. I n A r t i c l e 1 of t h e Convention, t h e f o l l o w i n g s h a l l be added a s new paragraph .1 bis:
"1 b i s . Any person commits a n o f f e n c e i f he u n l a w f u l l y and i n t e n t i o n a l l y , u s i n g any d e v i c e , substance o r weapon:

( a ) performs an a c t of v i o l e n c e a g a i n s t a person a t an a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n which causes o r i s l i k e l y t o cause s e r i o u s i n j u r y o r death; o r
(b) d e s t r o y s o r s e r i o u s l y damages t h e f a c i l i t i e s of a n
a i r p o r t serving international c i v i l aviation o r a i r c r a f t not i n s e r v i c e located thereon o r d i s r u p t s t h e s e r v i c e s of t h e a i r p o r t , i f auch an a c t endangers o r i s l i k e l y t o endanger s a f e t y a t t h a t a i r p o r t .It
2. I n paragraph 2 ( a ) of A r t i c l e 1 o f t h e Convention, t h e f o l l o w i n g words s h a l l be added a f t e r t h e words "paragraph 1":
"or paragraph 1
e'.
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V I A Doc No. 41
19/2/88
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INTERNATIONAL CONFERENCE O N A I R LAW (Montreal, 9
24 F e b r u a r y 1 9 8 8 )
DRAFT FINAL ACT
of t h e I n t e r n a t i o n a l C o n f e r e n c e on A i r Law h e l d u n d e r t h e a u s p i c e s of t h e I n t e r n a t i o n a l C i v i l A v i a t i o n O r g a n i z a t i o n i n F e b r u a r y 1988 The P l e n i p o t e n t i a r i e s a t t h e I n t e r n a t i o n a l C o n f e r e n c e o n A i r Law h e l d u n d e r t h e a u s p i c e s of t h e I n t e r n a t i o n a l C i v i l A v i a t i o n O r g a n i z a t i o n met a t M o n t r e a l from 9 t o 24 F e b r u a r y 1988 f o r t h e p u r p o s e of c o n s i d e r i n g d r a f t a r t i c l e s p r e p a r e d by t h e L e g a l Committee of t h e I n t e r n a t i o n a l C i v i l A v i a t i o n O r g a n i z a t i o n t o s u p p l e m e n t t h e C o n v e n t i o n f o r t h e S u p p r e s s i o n of Unlawful A c t s a g a i n s t t h e S a f e t y of C i v i l A v i a t i o n , done t M o n t r e a l on 23 September 1 9 7 1 . The Governments of t h e f o l l o w i n g 81 S t a t e s were r e p r e s e n t e d a t t h e Conference: A l g e r i a , t h e P e o p l e s D e m o c r a t i c R e p u b l i c of A r g e n t i n e Repub 1i c , t h e Australia A u s t r i a , t h e Republic of Belgium, t h e Kingdom o f B r a z i l , t h e F e d e r a t i v e R e p u b l i c of B u l g a r i a , t h e P e o p l e s R e p u b l i c of Byelorussian Soviet S o c i a l i s t Republic, t h e Canada C h i l e , t h e Republic of C h i n a , t h e P e o p l e s R e p u b l i c of Colombia, t h e R e p u b l i c of C o s t a R i c a , t h e R e p u b l i c of C t e d I v o i r e , t h e R e p u b l i c of Cuba, t h e R e p u b l i c of Czechoslovak S o c i a l i s t Republic, t h e D e m o c r a t i c P e o p l e s R e p u b l i c of K o r e a , t h e Denmark , t h e Kingdom o f Ecuador, t h e Republic of E g y p t , t h e Arab R e p u b l i c of E t h i o p i a , P e o p l e s D e m o c r a t i c R e p u b l i c of Finland, t h e Republic of French Republic, t h e German D e m o c r a t i c R e p u b l i c , t h e Germany, t h e F e d e r a l R e p u b l i c of Ghana, t h e R e p u b l i c o f G u i n e a , t h e R e p u b l i c of
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- 314 V I A Doc No. +1
H e l l e n i c Republic, t h e Hungarian Peoples Republic, t h e I c e l a n d , t h e R e p u b l i c of I n d i a , t h e Republic of I n d o n e s i a , t h e R e p u b l i c of I r a n , t h e I s l a m i c Republic of I r a q , t h e R e p u b l i c of Ireland I s r a e l , t h e S t a t e of I t a l i a n Repub 1i c , t h e Jama i c a Japan J o r d a n , t h e Hashemite Kingdom of Kenya, t h e Repub 1i c of Kuwait, t h e S t a t e of Lebanese R e p u b l i c , t h e L i b e r i a , t h e R e p u b l i c of L i b y a n Arab J a m a h i r i y a , t h e S o c i a l i s t P e o p l e s Luxembourg, t h e Grand Duchy o f Madagascar, t h e D e m o c r a t i c R e p u b l i c of Malawi, t h e R e p u b l i c o f Malays i a Malta, t h e Republic of Mexican S t a t e s , t h e U n i t e d N e t h e r l a n d s , t h e Kingdom of t h e New Zealand N i g e r , t h e R e p u b l i c of t h e N i g e r i a , t h e F e d e r a l R e p u b l i c of Norway, t h e Kingdom of Oman, t h e S u l t a n a t e of P a k i s t a n , t h e I s l a m i c Republic o f Panama, t h e R e p u b l i c of Peru, t h e Republic of P o l i s h Peoples Republic, t h e Portuguese Republic, t h e R e p u b l i c o f Korea, t h e Romania, t h e S o c i a l i s t R e p u b l i c o f S a u d i A r a b i a , t h e Kingdom of S e n e g a l , t h e R e p u b l i c of S p a i n , t h e Kingdom of Sweden, t h e Kingdom of Swiss C o n f e d e r a t i o n , t h e Togo 1e s e Re pub 1i c , t he T u n i s i a , t h e R e p u b l i c of Turkey, t h e R e p u b l i c of Ukrainian Soviet S o c i a l i s t Republic, t h e Union of S o v i e t S o c i a l i s t R e p u b l i c s , t h e U n i t e d Arab E m i r a t e s , t h e U n i t e d Kingdom o f G r e a t B r i t a i n and h r t h e r n I r e l a n d , t h e U n i t e d R e p u b l i c of T a n z a n i a , t h e U n i t e d S t a t e s o f America, t h e Venezuela, t h e Republic of Y u g o s l a v i a , t h e S o c i a l i s t F e d e r a l R e p u b l i c of Z a i r e , t h e R e p u b l i c of
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- 315 V I A Doc No. 41
The P a l e s t i n e L i b e r a t i o n O r g a n i z a t i o n was r e p r e s e n t e d b y an O b s e r v e r . The U n i t e d N a t i o n s was r e p r e s e n t e d by a n O b s e r v e r . The f o l l o w i n g I n t e r n a t i o n a l O r g a n i z a t i o n s were r e p r e s e n t e d by O b s e r v e r s : A i r p o r t A s s o c i a t i o n s C o o r d i n a t i n g C o u n c i l (AACC) Arab C i v i l A v i a t i o n C o u n c i l (ACAC) I n t e r n a t i o n a l A e r o n a u t i c a l F e d e r a t i o n (FA11 I n t e r n a t i o n a l d i r Transport Association (IATA) I n t e r n a t i o n a l F e d e r a t i o n of A i r L i n e P i l o t s A s s o c i a t i o n s (IFALPA) I n t e r n a t i o n a l Law A s s o c i a t i o n (ILA) The C o n f e r e n c e unanimously e l e c t e d a s P r e s i d e n t M r . P h i l i p p e K i r s c h ( C a n a d a ) . I t f u r t h e r unanimously e l e c t e d a s V i c e - p r e s i d e n t s Messrs. D.K. Ameyo ( K e n y a ) , J. S o b i e r a j ( P o l a n d ) , Z . Abdul ( M a l a y s i a ) and A. Snchez G u t i r r e z (Cuba). The S e c r e t a r y G e n e r a l o f t h e C o n f e r e n c e was M r . Yves Lambert, S e c r e t a r y G e n e r a l of t h e I n t e r n a t i o n a l C i v i l A v i a t i o n O r g a n i z a t i o n . D r . M. M i l d e , D i r e c t o r of t h e L e g a l Bureau of t h e I n t e r n a t i o n a l C i v i l A v i a t i o n O r g a n i z a t i o n , was t h e E x e c u t i v e S e c r e t a r y of t h e C o n f e r e n c e ; he was a s s i s t e d by D r . M. P o u r c e l e t , P r i n c i p a l L e g a l O f f i c e r , D r . E.W. F a l l e r , S e n i o r Legal: O f f i c e r and M r . G.M. Kakkar, L e g a l O f f i c e r of t h e O r g a n i z a t i o n and by o t h e r o f f i c i a l s of t h e Organization. The C o n f e r e n c e e s t a b l i s h e d a Commission o f t h e Whole, whose Chairman was t h e P r e s i d e n t of t h e C o n f e r e n c e , and t h e f o l l o w i n g Committees: CREDENTIALS COMMITTEE Chairman: Members: Mrs. L. Rodriguez P r e z ( C o l o m b i a ) Cte d I v o i r e Finland Hungary Indonesia
DRAFTING COMMITTEE Chaiman:
M r . L. Oates ( U n i t e d Kingdom)
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Members : A r g e n t i n a Austria Bulgar i a Chile China Czechos l o v a k So c i a 1i s t R e pub 1i c Egypt France F e d e r a l R e p u b l i c o f Germany
- 316 V I A Doc No. 41
India I s l a m i c Republic of I r a n Jamaica Japan t h e Kingdom of t h e Netherlands Norway Peru Senegal Spain Tunisia Union of Soviet S o c i a l i s t Republics United Kingdom United Republic of Tanzania United S t a t e s Venezuela
Following i t s d e l i b e r a t i o n s , t h e Conference adopted [by consensus] t h e t e x t of a P r o t o c o l f o r t h e Suppression of Unlawful Acts of Violence a t A i r p o r t s Serving I n t e r n a t i o n a l C i v i l A v i a t i o n , Supplementary t o t h e Convention f o r t h e Suppression of Unlawful A c t s , a g a i n s t t h e S a f e t y of C i v i l A v i a t i o n , Done a t Montreal on 23 September 1971. The s a i d P r o t o c o l has been opened f o r s i g n a t u r e a t Montreal on t h i s d a y . The Conference furthermore adopted by consensus t h e f o l l o w i n g R e s o l u t i o n :
WHEREAS unlawful a c t s of v i o l e n c e a g a i n s t i n t e r n a t i o n a l c i v i l a v i a t i o n c o n t i n u e s e r i o u s l y t o compromise t h e s a f e t y , r e g u l a r i t y and e f f i c i e n c y of a i r services;

WHEREAS t h e s a f e t y of persons and p r o p e r t y a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l
c i v i l a v i a t i o n r e q u i r e s continued v i g i l a n c e , development and implementation of p o s i t i v e s a f e g u a r d i n g a c t i o n s by t h e I n t e r n a t i o n a l C i v i l A v i a t i o n O r g a n i z a t i o n and a l l S t a t e s t o prevent and s u p p r e s s unlawful a c t s of v i o l e n c e a t such a i r p o r t s ;
CONFIRMING t h a t t h e implementation of t h e s e c u r i t y measures adopted by ICA0 is an e f f e c t i v e means of p r e v e n t i n g a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g international c i v i l aviation; AWARE t h a t n o t w i t h s t a n d i n g a s s i s t a n c e given t o S t a t e s i n need, some S t a t e s , i n p a r t i c u l a r developing S t a t e s , s t i l l f a c e d i f f i c u l t i e s i n f u l l y implementing p r e v e n t i v e measures because of i n s u f f i c i e n t f i n a n c i a l and t e c h n i c a l resources;
THE CONFERENCE:
1.
Urges a l l S t a t e s on an i n d i v i d u a l b a s i s and i n c o o p e r a t i o n w i t h o t h e r S t a t e s t o t a k e a l l p o s s i b l e measures f o r t h e s u p p r e s s i o n of a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n i n c l u d i n g such p r e v e n t i v e
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- 317 -
V I A Doc No. 41
m e a s u r e s a s a r e r e q u i r e d o r recommended u n d e r Annex 1 7 t o t h e Convention on I n t e r n a t i o n a l C i v i l A v i a t i o n and by conforming p r o m p t l y , e f f e c t i v e l y and c o m p l e t e l y w i t h t h e i r r e s p o n s i b i l i t i e s and o b l i g a t i o n s u n d e r t h e Tokyo, The Hague and t h e M o n t r e a l Conventions and t h e r e l e v a n t ICAO Assembly and C o u n c i l R e s o l u t i o n s r e l a t i n g t o t h e s u p p r e s s i o n of u n l a w f u l a c t s a g a i n s t t h e s a f e t y of c i v i l a v i a t i o n .
2.
3.
Urges t h e i n t e r n a t i o n a l community t o c o n s i d e r i n c r e a s i n g t e c h n i c a l , f i n a n c i a l and m a t e r i a l a s s i s t a n c e t o S t a t e s i n need o f s u c h a s s i s t a n c e t o improve s e c u r i t y a t t h e i r a i r p o r t s t h r o u g h b i l a t e r a l and m u l t i l a t e r a l e f f o r t , i n p a r t i c u l a r , t h r o u g h t h e I C A O T e c h n i c a l A s s i s t a n c e mechanism.
I N WITNESS WHEREOF t h e D e l e g a t e s o f S t a t e s d u l y a u t h o r i z e d t h e r e t o have s i g n e d t h i s F i n a l Act.
DONE a t M o n t r e a l on t h e t w e n t y - f o u r t h day o f F e b r u a r y of t h e y e a r One Thousand Nine Hundred and E i g h t y - e i g h t i n f o u r a u t h e n t i c t e x t s i n t h e E n g l i s h , F r e n c h , R u s s i a n and S p a n i s h l a n g u a g e s i n a s i n g l e copy which s h a l l be d e p o s i t e d w i t h t h e I n t e r n a t i o n a l C i v i l A v i a t i o n O r g a n i z a t i o n and a c e r t i f i e d copy o f which s h a l l be d e l i v e r e d by t h e s a i d O r g a n i z a t i o n t o each of t h e Governments r e p r e s e n t e d a t t h e Conference.
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Urges t h e C o u n c i l of I C A O t o c o n t i n u e t o a t t a c h t o p p r i o r i t y t o t h e a d o p t i o n of e f f e c t i v e m e a s u r e s f o r t h e p r e v e n t i o n o f a c t s of u n l a w f u l i n t e r f e r e n c e and t o k e e p u p - t o - d a t e t h e p r o v i s i o n s of Annex 1 7 t o t h e Chicago Convention t o t h i s end.
--`,,```,,,,````-`-`,,`,,`,`,,`---
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- 319 V I A Doc No. 42
19/2/88
(Montreal, 9
24 F e b r u a r y 1988)
DRAFT PROTOCOL f o r t h e S u p p r e s s i o n of Unlawful A c t s of V i o l e n c e a t Airports Serving I n t e r n a t i o n a l C i v i l Aviation, Supplementary t o t h e Convention f o r t h e S u p p r e s s i o n o f Unlawful A c t s a g a i n s t t h e S a f e t y of C i v i l A v i a t i o n , Done a t M o n t r e a l on 23 September 1971
THE STATES PARTIES TO THIS PROTOCOL

--`,,```,,,,````-`-`,,`,,`,`,,`---
C O N S I D E R I N G t h a t u n l a w f u l a c t s of v i o l e n c e which e n d a n g e r o r a r e l i k e l y t o
e n d a n g e r t h e s a f e t y of pers'ons a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n o r which j e o p a r d i z e t h e s a f e o p e r a t i o n o f s u c h a i r p o r t s undermine t h e c o n f i d e n c e of t h e p e o p l e s of t h e world i n s a f e t y a t s u c h a i r p o r t s and d i s t u r b t h e s a f e and o r d e r l y conduct of c i v i l a v i a t i o n f o r a l l S t a t e s ; CONSIDERING t h a t t h e o c c u r r e n c e of s u c h a c t s i s a m a t t e r of g r a v e c o n c e r n t o t h e i n t e r n a t i o n a l community and t h a t , f o r t h e p u r p o s e o f d e t e r r i n g s u c h a c t s , t h e r e i s a n u r g e n t need t o p r o v i d e a p p r o p r i a t e m e a s u r e s f o r punishment of o f f e n d e r s ; CONSIDERING t h a t i t i s n e c e s s a r y t o a d o p t p r o v i s i o n s s u p p l e m e n t a r y t o t h o s e o f t h e C o n v e n t i o n f o r t h e S u p p r e s s i o n of Unlawful A c t s a g a i n s t t h e S a f e t y of C i v i l A v i a t i o n , done a t M o n t r e a l on 23 September 1971, t o d e a l w i t h s u c h u n l a w f u l a c t s of v i o l e n c e a t a i r p o r t s s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n ,
HAVE AGREED AS FOLLOWS:
Article I T h i s P r o t o c o l s u p p l e m e n t s t h e Convention f o r t h e S u p p r e s s i o n of Unlawful A c t s a g a i n s t t h e S a f e t y o f C i v i l A v i a t i o n , done a t M o n t r e a l on 23 September 1971 ( h e r e i n a f t e r r e f e r r e d t o a s " t h e C o n v e n t i o n " ) , a n d , a s between t h e P a r t i e s t o t h i s P r o t o c o l , t h e C o n v e n t i o n and t h e P r o t o c o l s h a l l b e r e a d and i n t e r p r e t e d t o g e t h e r a s o n e s i n g l e i n s t r u m e n t .
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- 320 V I A Doc No. 42
A r t i c l e II
1. I n A r t i c l e 1 of t h e C o n v e n t i o n , t h e f o l l o w i n g s h a l l b e added a s new p a r a g r a p h 1 bis:
"1 b i s . Any p e r s o n commits a n o f f e n c e i f h e u n l a w f u l l y and i n t e n t i o n a l l y , u s i n g any d e v i c e , s u b s t a n c e o r weapon:

( a ) p e r f o r m s a n a c t of v i o l e n c e a g a i n s t a p e r s o n a t a n a i r p o r t s e r v i n g i n t e r n a t i o n a l c i v i l a v i a t i o n which causes o r i s l i k e l y t o cause s e r i o u s i n j u r y o r death; o r
(b) d e s t r o y s o r s e r - i o u s l y damages t h e f a c i l i t i e s o f a n
airport serving international c i v i l aviation o r a i r c r a f t not i n s e r v i c e located thereon o r d i s r u p t s t h e s e r v i c e s of t h e a i r p o r t , i f such an a c t endangers o r i s l i k e l y t o endanger s a f e t y a t that airport
."
2. I n p a r a g r a p h 2 ( a ) of A r t i c l e 1 of t h e C o n v e n t i o n , t h e f o l l o w i n g words s h a l l b e added a f t e r t h e words " p a r a g r a p h 1": " o r p a r a g r a p h 1 -. bis"
A r t i c l e III
I n A r t i c l e 5 of t h e C o n v e n t i o n , t h e f o l l o w i n g s h a l l b e added a s p a r a g r a p h 2 bis: Each C o n t r a c t i n g S t a t e s h a l l l i k e w i s e t a k e s u c h m e a s u r e s a s "2 b i s . may b e n e c e s s a r y t o e s t a b l i s h i t s j u r i s d i c t i o n o v e r t h e o f f e n c e s m e n t i o n e d i n A r t i c l e 1, p a r a g r a p h 1 b i s , and i n A r t i c l e 1, p a r a g r a p h 2, i n s o f a r a s t h a t p a r a g r a p h r e l a t e s t o t h o s e o f f e n c e s , i n t h e c a s e where t h e a l l e g e d o f f e n d e r i s p r e s e n t i n i t s t e r r i t o r y and i t d o e s n o t e x t r a d i t e him p u r s u a n t t o A r t i c l e 8 t o t h e S t a t e m e n t i o n e d i n paragraph l ( a ) of t h i s A r t i c l e . "
A r t i c l e IV
T h i s P r o t o c o l s h a l l b e open f o r s i g n a t u r e a t M o n t r e a l on 24 F e b r u a r y 1 9 8 8 by S t a t e s p a r t i c i p a t i n g i n t h e I n t e r n a t i o n a l C o n f e r e n c e o n A i r Law h e l d a t M o n t r e a l from 9 t o 24 F e b r u a r y 1988. A f t e r 1 March 1988, t h e P r o t o c o l s h a l l be o p e n f o r s i g n a t u r e t o a l l S t a t e s i n London, Moscow, Washington and M o n t r e a l , u n t i l i t e n t e r s i n t o f o r c e i n accordance w i t h A r t i c l e V I .
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- 321 V I A Doc No. 42
Article V
1.
T h i s P r o t o c o l s h a l l b e s u b j e c t t o r a t i f i c a t i o n by t h e s i g n a t o r y S t a t e s .
2 . Any S t a t e which i s n o t a C o n t r a c t i n g S t a t e t o t h e C o n v e n t i o n may r a t i f y t h i s P r o t o c o l i f a t t h e same t i m e i t r a t i f i e s o r a c c e d e s t o t h e Convention i n accordance with A r t i c l e 15 t h e r e o f .

3 . I n s t r u m e n t s of r a t i f i c a t i o n s h a l l b e d e p o s i t e d w i t h t h e Governments o f t h e Union of S o v i e t S o c i a l i s t R e p u b l i c s , t h e U n i t e d Kingdom of G r e a t B r i t a i n and N o r t h e r n I r e l a n d and t h e U n i t e d S t a t e s of America o r w i t h t h e I n t e r n a t i o n a l C i v i l A v i a t i o n O r g a n i z a t i o n , which a r e h e r e b y d e s i g n a t e d t h e D e p o s i t a r i e s .
1. A s s o o n as t e n of t h e s i g n a t o r y S t a t e s have d e p o s i t e d t h e i r i n s t r u m e n t s of r a t i f i c a t i o n of t h i s P r o t o c o l , i t s h a l l e n t e r i n t o f o r c e between them on t h e t h i r t i e t h day a f t e r t h e d a t e of t h e d e p o s i t of t h e t e n t h i n s t r u m e n t of r a t i f i c a t i o n . I t s h a l l e n t e r i n t o f o r c e f o r e a c h S t a t e which d e p o s i t s i t s i n s t r u m e n t of r a t i f i c a t i o n a f t e r t h a t d a t e on t h e t h i r t i e t h day a f t e r d e p o s i t of i t s i n s t r u m e n t of r a t i f i c a t i o n .

2 . A s s o o n a s t h i s P r o t o c o l e n t e r s i n t o f o r c e , i t s h a l l b e r e g i s t e r e d by t h e D e p o s i t a r i e s p u r s u a n t t o A r t i c l e 1 0 2 of t h e C h a r t e r of t h e U n i t e d N a t i o n s and p u r s u a n t t o A r t i c l e 83 of t h e Convention on I n t e r n a t i o n a l C i v i l A v i a t i o n ( C h i c a g o , 1944).
Article V I 1
1. T h i s P r o t o c o l s h a l l , a f t e r i t h a s e n t e r e d i n t o f o r c e , b e open f o r a c c e s s i o n by any n o n - s i g n a t o r y S t a t e .
2 . Any S t a t e which i s n o t a C o n t r a c t i n g S t a t e t o t h e C o n v e n t i o n may a c c e d e t o t h i s P r o t o c o l i f a t t h e same t i m e i t r a t i f i e s o r a c c e d e s t o t h e C o n v e n t i o n i n a c c o r d a n c e w i t h A r t i c l e 15 t h e r e o f .
3 . I n s t r u m e n t s o f a c c e s s i o n s h a l l b e d e p o s i t e d w i t h t h e D e p o s i t a r i e s and a c c e s s i o n s h a l l t a k e e f f e c t on t h e t h i r t i e t h day a f t e r t h e d e p o s i t .
A r t i c l e VI11
I . Any P a r t y t o t h i s P r o t o c o l may denounce i t by w r i t t e n n o t i f i c a t i o n addressed t o t h e Depositaries.

2 . D e n u n c i a t i o n s h a l l t a k e e f f e c t s i x months f o l l o w i n g t h e d a t e on which n o t i f i c a t i o n i s r e c e i v e d by t h e D e p o s i t a r i e s .
3.
D e n u n c i a t i o n of t h i s P r o t o c o l s h a l l n o t of i t s e l f h a v e t h e e f f e c t o f d e n u n c i a t i o n of t h e Convention.
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Article V I
- 322 V I A Doc No. 42
4.
D e n u n c i a t i o n of t h e Convention by a C o n t r a c t i n g S t a t e t o t h e Convention a s s u p p l e m e n t e d by t h i s P r o t o c o l s h a l l a l s o have t h e e f f e c t o f d e n u n c i a t i o n of t h i s Protocol.
A r t i c l e IX
1. The D e p o s i t a r i e s s h a l l p r o m p t l y i n f o r m a l l s i g n a t o r y and a c c e d i n g S t a t e s t o t h i s P r o t o c o l and a l l s i g n a t o r y and a c c e d i n g S t a t e s t o t h e C o n v e n t i o n :
( a ) o f t h e d a t e o f e a c h s i g n a t u r e and t h e d a t e of d e p o s i t o f e a c h i n s t r u m e n t o f r a t i f i c a t i o n o f , o r a c c e s s i o n t o , t h i s P r o t o c o l , and ( b ) of t h e r e c e i p t o f any n o t i f i c a t i o n of d e n u n c i a t i o n o f t h i s P r o t o c o l and the date thereof.
2 . The D e p o s i t a r i e s s h a l l a l s o n o t i f y t h e S t a t e s r e f e r r e d t o i n p a r a g r a p h 1 o f t h e d a t e on which t h i s P r o t o c o l e n t e r s i n t o f o r c e i n a c c o r d a n c e w i t h Article VI.
I N WITNESS WHEREOF t h e u n d e r s i g n e d P l e n i p o t e n t i a r i e s , b e i n g d u l y a u t h o r i z e d t h e r e t o .by t h e i r Governments, have s i g n e d t h i s P r o t o c o l .
DONE a t M o n t r e a l on t h e t w e n t y - f o u r t h day o f F e b r u a r y o f t h e y e a r One Thousand Nine Hundred and E i g h t y - E i g h t , i n f o u r o r i g i n a l s , e a c h b e i n g drawn up i n f o u r a u t h e n t i c t e x t s i n t h e E n g l i s h , F r e n c h , R u s s i a n and S p a n i s h l a n g u a g e s .
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- 323 -
PART V
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Doc 9518
PROTOCOL
for the Suppression of Unlawful Acts of Violence at Airports Serving International Civil Aviation, Supplementary to the Convention for the Suppression of Unlawful Acts against the Safety of Civil Aviation, Done at Montreal on 23 September 1971
Signed at Montreal on 24 February 1988
PROTOCOLE
pour ia rpression des actes illicites de violence dans les aroports servant laviation civile internationale, complmentaire la Convention pour la rpression dactes illicites dirigs contre la scurit de laviation civile, faite Montral le 23 septembre 1971
Sign Montral le 24 fvrier 1988
IIPOTOKOJI
PROTOCOLO
para la represin de actos ilcitos de violencia en los aeropuertos que presten servicio a la aviacin civil internaciona-, complementario del Convenio para la represin de actos ilcitos contra la seguridad de la aviacin civil, hecho en Montreal el 23 de septiembre de 1971
Firmado en Montreal el 24 de febrero de 1988
1988
INTERNATIONAL CIVIL AVIATION ORGANIZATION ORGANISATION DE LAVIATION CIVILE INTERNATIONALE MEXflYHAPOflHAX OPTAHM3AUMA rPAXflAHCKOfi ABMAUMM ORGANIZACION DE AVIACION CIVIL INTERNACIONAL Copyright International Civil Aviation Organization
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- 326 -
PROTOCOL
for the Suppression of Unlawful Acts of Violence at Airports Serving International Civil Aviation, Supplementary to the Convention for the Suppression of Unlawful Acts against the Safety of Civil Aviation, Done at Montreal o n 23 September 1971
THE STATES PARTIES TO THIS PROTOCOL CONSIDERING that unlawful acts of violence which endanger or are likely to endanger the safety of persons at airports serving international civil aviation or which jeopardize the safe operation of such airports undermine the confidence of the peoples of the world in safety at such airports and disturb the safe and orderly conduct of civil aviation for all States; CONSIDERING that the occurrence of such acts is a matter of grave concern to the international community and that, for the purpose of deterring such acts, there is an urgent need to provide appropriate measures for punishment of offenders; CONSIDERING that it is necessary to adopt provisions supplementary to those of the Convention for the Suppression of Unlawful Acts against the Safety of Civil Aviation, done at Montreal on 23 September 1971, to deal with such unlawful acts of violence at airports serving international civil aviation; HAVE AGREED AS FOLLOWS:
Article I
This Protocol supplements the Convention for the Suppression of Unlawful Acts against the Safety of Civil Aviation, done at Montreal on 23 September 1971 (hereinafter referred to as the Convention), and, as between the Parties to this Protocol, the Convention and the Protocol shall be read and interpreted together as one single instrument.
Article II
1.
in Article 1 of the Convention, the following shall be added as new paragraph 1 bis:
1 bis. Any person commits an offence if he unlawfully and intentionally, using any device, substance or weapon:
(a) performs an act of violence against a person at an airport serving international civil aviation which causes or is likely t o cause serious injury or death; or
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- 327 (b) destroys or seriously damages the facilities of an airport serving international civil aviation or aircraft not in service located thereon or disrupts the services of the airport, if such an act endangers or is likely to endanger safety at that airport.
2. In paragraph 2 (a) of Article I of the Convention, the following words shatt be inserted after the words paragraph 1:
or paragraph 1 bis.
Artick Il
In Article 5 of the Convention, the following shall be added as paragraph 2 6LF:

2 bis. Each Contracting State shall likewise take such measures as may be necessary to establish its jurisdiction over the offences mentioned in Article I , paragraph I bis, and in Article i , paragraph 2, in so far as that paragraph relates to those offences, in the case where the alleged offender is present in its territory and it does not extradite him pursuant to Article 8 to the State mentioned in paragraph 1 (a) of this Article.
Article IV
This Protocol shall be open for signature At Montreal on 24 February 1988 by States participating in the International Conference on Air Law held at Montreal from 9 to 24 February 1988. After I March 1988, the Protocol shall be open for signature to all States in London. Moscow, Washington and Montreal, until it enters into force in accordance with Article VI.
Artick V
1.
This Protocol shall be subject to ratification by the signatory States.
Any State which is not a Contracting State to the Convention may ratify this Protocol 2. if at the same time it ratiies or accedes to the Convention in accordance with Article IS thereof.
3. Instruments of ratification shall be deposited with the Governments of the Union of Soviet Socialist Republics, the United Kingdom of Great Britain and Northern Ireland and the United States of America or with the International Civil Aviation Organization, which are hereby designated the Depositaries. Article VI I. As soon as ten of the signatory States have deposited their instruments of ratification of this Protocol, it shall enter into force between them on the thirtieth day after the date of the deposit of the tenth instrument of ratification. It shall enter into force for each State which deposits its instrument of ratification after that date on the thirtieth day after deposit of its instrument of ratification.
2. As soon as this Protocol enters into force, it shall be registered by the Depositaries pursuant to Article 102 of the Charter of the United Nations and pursuant to Article 83 of the Convention on International Civil Aviation (Chicago, 1944).
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- 328 Article VI1 This Protocol shall, after it has entered into force, be open for accession by any nonI. signatory State.
2. Any State which is not a Contracting State to the Convention may accede to this Protocol if at the same time it ratifies or accedes to the Convention in accordance with Article IS thereof.
Instruments of accession shall be deposited with the Depositaries and accession shall take 3. effect on the thirtieth day after the deposit. Article VI11 Any Party to this Protocol may denounce it by written notification addressed to the 1. Depositaries. Denunciation shall take effect six months following the date on which notification is 2. received by the Depositaries.
3. Denunciation of this Protocol shall not of itself have the effect of denunciation of the Convention.
4. Denunciation of the Convention by a Contracting State to the Convention as supplemented by this Protocol shall also have the effect of denunciation of this Protocol.
Article I X
1. The Depositaries shall promptly inform ali signatory and acceding States to this Protocol and ail signatory and acceding States to the Convention:
(a) of the date of each signature and the date of deposit of each instrument of ratification of, or accession to, this Protocol, and (b) of the receipt of any notification of denunciation of this Protocol and the date thereof.
2. The Depositaries shall also notify the States referred to in paragraph i of the date on which this Protocol enters into force in accordance with Article VI.
IN WITNESS WHEREOF the undersigned Plenipotentiaries, being duly authorized thereto by their Governments, have signed this Protocol.
DONE at Montreal on the twenty-fourth day of February of the year One Thousand Nine Hundred and Eighty-eight, in four originals, each being drawn up in four authentic texts in the English, French, Russian and Spanish languages.
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- 329 -
P A R T VI
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-331
FINAL ACT
of the International Conference on Air Law held under the auspices of the International Civil Aviation Organization in February 1988
ACTE FINAL
de la Confrence internationale de droit arien tenue sous les auspices de l'Organisation de l'Aviation civile internationale en fvrier 1988
3AKl'IK)YHTEl'IbHbIfi AKT
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ACTA FINAL
de la Conferencia Internacional de Derecho Areo celebrada en Montreal en el mes de febrero de 1988, bajo el patrocinio de la Organizacin de Aviacin Civil Internacional
MONTREAL
24 FEBRUARY 1988
MONTREAL
24 FVRIER 1988
MOHPEAJlb
24 QEBPAJITIR 1988 r0aA
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MONTREAL
24 DE FEBRERO DE i988
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- 333 -
FINAL ACT
of the International Conference on Air Law held under the auspices of the International Civil Aviation Organization in February 1988
The Plenipotentiaries at the International Conference o n Air Law held under the auspices of the International Civil Aviation Organization met at Montreal from 9 to 24 February 1988 for the purpcie of considering draft articles prepared by the Legal Committee of the International Civil Aviation Organization to supplement the Convention for the Suppression of Unlawful Acts against the Safety of Civil Aviation, done at Montreal o n 23 September 1971. The Governments of the following 81 States were represented at the Conference: Algeria, the Peoples Democratic Republic of Argentine Republic, the Australia Austria, the Republic of Belgium, the Kingdom of Brazil, the Federative Republic of Bulgaria, the Peoples Republic of Byelorussian Soviet Socialist Republic, the Canada Chile, the Republic of China, the Peoples Republic of Colombia, the Republic of Costa Rica, the Republic of Cte dIvoire, the Republic of Cuba, the Republic of Czechoslovak Socialist Republic, the Democratic Peoples Republic of Korea, the Denmark, the Kingdom of Ecuador, the Republic of Egypt, the Arab Republic of Ethiopia, the Peoples Democratic Republic o f Finland, the Republic of French Republic, the German Democratic Republic, the Germany, the Federal Republic of Ghana, the Republic of Guinea, the Republic of Hellenic Republic, the Hungarian Peoples Republic, the Iceland, the Republic of India, the Republic of Indonesia, the Republic of Iran, the Islamic Republic of Iraq, the Republic of Ireland Israel, the State of Italian Republic, the Jamaica
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- 334 -
Japan Jordan, the Hashemite Kingdom of Kenya, the Republic of Kuwait, the State of Lebanese Republic, the Liberia, the Republic of Libyan Arab Jamahiriya, the Socialist Peoples Luxembourg, the Grand Duchy of Madagascar, the Democratic Republic of Malawi, the Republic of Malaysia Malta, the Republic of Mexican States, the United Netherlands, the Kingdom of the New Zealand Niger, the Republic of the Nigeria, the Federal Republic of Norway, the Kingdom of Oman, the Sultanate of Pakistan, the Islamic Republic of Panama, the Republic of Peru, the Republic of Polish Peoples Republic, the Portuguese Republic, the Republic of Korea, the Romania, the Socialist Republic of Saudi Arabia, the Kingdom of Senegal, the Republic of Spain, the Kingdom of Sweden, the Kingdom of Swiss Confederation, the Togolese Republic, the Tunisia, the Republic of Turkey, the Republic of Ukrainian Soviet Socialist Republic, the Union of Soviet Socialist Republics, the United Arab Emirates, the United Kingdom of Great Britain and Northern Ireland, the United Republic of Tanzania, the United States of America, the Venezuela, the Republic of Yugoslavia, the Socialist Federal Republic of Zaire, the Republic of The Palestine Liberation Organization was represented by a n Observer. The United Nations was represented by an Observer. The following International Organizations were represented by Observers: Airport Associations Co-ordinating Council (AACC) Arab Civil Aviation Council (ACAC) International Aeronautical Federation (FAI) International Air Transport Association (IATA) International Federation of Air Line Pilots Associations (IFALPA) International Law Association (ILA)
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- 335 -
The President of the Council of the International Civil Aviation Organization, Dr. Assad Kotaite, opened the Conference. The Conference unanimously elected as President Mr. Philippe Kirsch (Canada). It further unanimously elected as Vice-presidents Messrs. D.K. Ameyo (Kenya), J . Sobieraj (Poland), Z. Abdul (Malaysia) and A . Snchez Gutirrez (Cuba). The Secretary General of the Conference was Mr. Yves Lambert, Secretary General of the International Civil Aviation Organization. Dr. M. Milde, Director of the Legal Bureau of the International Civil Aviation Organization, was the Executive Secretary of the Conference; he was assisted by Dr. M . Pourcelet, Principal Legal Officer, Dr. E.W. Faller, Senior Legal Officer and M r . C . M . Kakkar, Legal Officer of the Organization and by other officials of the Organization. The Conference established a Commission of the Whole, whose Chairman was the President of the Conference, and the following Committees:
CREDENTIALS COMMITTEE
Chairman: Mrs. L. Rodriguez Perez (Colombia) Members: Cte dIvoire Finland Hungary Indonesia
DRAFTING COMMITTEE
Chairman: Mr. L. Oates (United Kingdom) Members: Argentina Austria Bulgaria Chile China Czechoslovak Socialist Republic Egypt France Federal Republic of Germany India Islamic Republic of Iran Jamaica Japan Kingdom of the Netherlands Norway Peru Senegal Spain Tunisia Union of Soviet Socialist Republics United Kingdom United Republic of Tanzania United States Venezuela
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- 336 Following its deliberations, the Conference adopted by consensus the text o f a Protocol for the Suppression of Unlawful Acts of Violence at Airports Serving International Civil Aviation, Supplementary to the Convention for the Suppression of Unlawful Acts against the Safety of Civil Aviation, Done at Montreal on 23 September 1971. The said Protocol has been opened for signature at Montreal on this day. The Conference furthermore adopted by consensus the following Resolution: WHEREAS unlawful acts of violence against international civil aviation continue seriously to compromise the safety, regularity and efficiency of air services; WHEREAS the safety o f persons and property at airports serving international civil aviation requires continued vigilance, development and implementation of positive safeguarding actions by the international Civil Aviation Organization and all States to prevent and suppress unlawful acts of violence at such airports; * CONFIRMING that the implemcntation of the security measures adopted by ICAO is an effective means of preventing acts of violence at airports serving international civil aviation; AWARE that notwithstanding assistance given, some States, in particular developing States, still face difficulties in fully implementing preventive measures because of insufficient financial and technical resources; T H E CONFERENCE:
I . Urges all States o n an individual basis and in co-operation with other States to take all possible measures for the suppression of acts of violence at airports serving international civil aviation including such preventive measures as are required or recommended under Annes 17 to the Convention on International Civil Aviation and by conforming promptly, effectively and completely with their responsibilities and obligations under the Tokyo, The Hague and the Montreal Conventions and the relevant ICAO Assembly and Council Resolutions relating to the suppression of unlawful acts against the safety of civil aviation.
2. Urges the Council of ICAO to continue to attach top priority to the adoption of effective measures for the prevention of acts of unlawful interference and to keep up to date the provisions of Annex 17 to the Chicago Convention lo this end.
3. Urges the international community to consider increasing technical, financial and material assistance to States in need of such assistance to improve security at their airports through bilateral and multilateral effort, in particular, through the ICAO Technical Assistance mechanism.
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IN WITNESS W H E R E O F the Delegates of States duly authorized thereto have signed this Final Act. DONE at Montreal o n the twenty-fourth day of February of the year One Thousand Nine Hundred and Eighty-eight in four authentic texts in the English, French, Russian and Spanish languages in a single copy which shall be deposited with the International Civil Aviation Organization and a certified copy of which shall be delivered by the said Organization t o each o f the Governments represented at the Conference.
- END Copyright International Civil Aviation Organization Provided by IHS under license with ICAO No reproduction or networking permitted without license from IHS Not for Resale
ISBN 92-9194-169-7
9/03, WP111300 Order No. 9823
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DOC 9823-DCE

INTERNATIONAL CIVIL AVIATION ORGANIZATION

INTERNATIONAL CONFERENCE ON AIR LAW

MINUTES AND DOCUMENTS

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Catalogue of ICAO Publications and Audio-visual Training Aids

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SECOND PLENARY MEETING. 9 February 1988 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

THIRD PLENARY MEETING. 10 February 1988 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

FOURTH PLENARY MEETING. 10 Februav 1988 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

FIRST MEETING OF THE COMMISSION OF THE WHOLE. 10 February 1988 . . . . . . . . . . . . 37

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THIRD MEETING OF THE COMMISSION OF THE WHOLE, 11 February 1988 . . . . . . . . . . . 47

FIFTH PLENARY MEETING. 11 February 1988 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 55

FOURTH MEETING OF THE COMMISSION OF THE WHOLE. 12 Februmy 1988 .......... 57

FIFTH MEETING OF THE COMMISSION OF THE WHOLE. 12 February 1988 . . . . . . . . . . . . 61

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NINTH MEETING OF THE COMMISSION OF THE WHOLE. 16 February 1988 . . . . . . . . . . . 87

TENTH MEETING OF THE COMMISSION OF THE WHOLE. 17 February 1988 . . . . . . . . . . . 93

ELEVENTH MEETING OF THE COMMISSION OF THE WHOLE. 18 February 1988 . . . . . . . 99

TWELFTH MEETING OF THE COMMISSION OF THE WHOLE. 18 February 1988 . . . . . . . 103

THIRTEENTH MEETING OF THE COMMISSION OF THE WHOLE. 19 February 1988 . . . . 105

SEVENTH PLENARY MEETING. 19 February 1988 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

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TENTH PLENARY MEETING. 24 February 1988 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

PART III PREPARATORY MATERIAL

PART IV DOCUMENTATION OF THE CONFERENCE

191 193 201 207

VIA Doc No . 3 VIA D c No . 4 o

VIA Doc No . 6 VIA D c No . 6 o (Addendum)

VIA Doc No . 12 VIA Doc No . 13 VIA Doc No . 14

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VIA Doc No . 14 (Addendum) VIA Doc No . 15

Comments of France . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Comments of Chad . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Comments of Israel . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Comments of Greece . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

291 293 295 299

ViA Doc No. 42

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ACTION BY THE COUNCIL

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ALGERIA, THE PEOPLESS DEMOCRATIC REPUBLIC OF

BRAZIL,THE FEDERATIVE REPUBLIC OF

ARGENTINE REPUBLIC, THE

BULGARIA, THE PEOPLESREPUBLIC OF

BYELORUSSIAN SOVIET SOCIALIST REPUBLIC, THE

BELGIUM, THE KINGDOM OF

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CHILE, THE REPUBLIC OF

R.J. Gaete J. R.Ansted

COLOMBIA, THE REPUBLIC OF

COSTA RICA, THE REPUBLIC OF

EGYPT, THE ARAB REPUBLIC OF

CTE DIVOIRE, THE REPUBLIC OF Y. Kon ETHIOPIA, PEOPLES DEMOCRATIC REPUBLIC OF

CUBA, THE REPUBLIC OF

FINLAND, THE REPUBLIC OF E. Helaniemi

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