ABSTRACT

H o w d o h u m a n r i g h t s n o r m s c o n d i t i o n s t a t e s ' r e s p o n s e s to i n t e r n a t i o n a l c r i t i - cism? As n o t e d i n t h e i n t r o d u c t o r y c h a p t e r s , t h e s p i r a l m o d e l o u t l i n e s ap r o c e s s i n w h i c h f o c u s e d c o m m u n i c a t i o n , a r g u m e n t a n d , i n some cases, p e r s u a s i o n c a n t a k e place o n c e as t a t e r e c o g n i z e s h u m a n r i g h t s n o r m s ' p r e s c r i p t i v e status. Ar e g u l a r i z e d , s o m e m i g h t say s t y l i z e d , v e r s i o n o f h u m a n rights c o m m u n i c a t i o n t a k e s p l a c e b o t h w h e n s t a t e s accede t o g l o b a l h u m a n rights t r e a t i e s a n d w h e n g o v e r n m e n t s are a d d r e s s e d u n d e r t h e p r o c e d u r e s t h a t have evolved for c o n s i d - e r a t i o n o f c o u n t r i e s ' h u m a n r i g h t s r e c o r d s at t h e U n i t e d Nations ( U N ) . I f i n t e r - n a t i o n a l n o r m s , r u l e s a n d p r i n c i p l e s p r o v i d e ab a c k d r o p for f u r t h e r e n g a g e m e n t a n d a r g u m e n t a b o u t facts a n d a c c o u n t a b i l i t y , we m i g h t expect to see differing levels o f c h a n g e i n ac o u n t r y ' s h u m a n r i g h t s r e c o r d d e p e n d i n g o n h o w deeply, a n d u n d e r w h a t c i r c u m s t a n c e s , i t engages w i t h t h e i n t e r n a t i o n a l h u m a n r i g h t s f r a m e w o r k . This c h a p t e r applies af o r m o f d y n a m i c t i m e series analysis, as t a t - i s t i c a l t e c h n i q u e , a l o n g w i t h as h o r t case s t u d y o f U N a c t i o n o n I n d o n e s i a , to c o n s i d e r t h e effects o f t h e d i s c u r s i v e e n g a g e m e n t r e p r e s e n t e d by t r e a t y c o m m i t - m e n t a n d w h e t h e r h u m a n r i g h t s t r e a t y c o m p l i a n c e varies when as t a t e receives a d d i t i o n a l i n t e r n a t i o n a l a t t e n t i o n . 1 C o m m i t m e n t i n t h e analysis b e l o w is i n d i c a t e d b y t h e r a t i f i c a t i o n o f o n e

o r two m a j o r h u m a n r i g h t s t r e a t i e s , t h e I n t e r n a t i o n a l C o v e n a n t o n Civil a n d Political Rights ( I C C P R , UN 1966), w h i c h e n t e r e d i n t o force i n 1976, a n d t h e C o n v e n t i o n a g a i n s t T o r t u r e a n d O t h e r C r u e l , I n h u m a n , o r D e g r a d i n g T r e a t m e n t o r P u n i s h m e n t (CAT, U N 1984), w h i c h e n t e r e d i n t o force in 1987. C o m p l i a n c e w i t h h u m a n r i g h t s n o r m s is b a s e d o n am e a s u r e o f t h e level o f r e s p e c t for b a s i c p h y s i c a l i n t e g r i t y r i g h t s , d e s c r i b e d below. I n a d d i t i o n t o t h e e x p e c t a - t i o n s b r o u g h t i n t o r e l i e f w h e n as t a t e ratifies ah u m a n rights treaty, p r o c e d u r e s

w i t h i n t h e U N f r a m e w o r k c a n also b e i n v o k e d to raise c o n c e r n s a b o u t ac o u n - try's h u m a n r i g h t s record. R e s o l u t i o n s a d o p t e d by t h e UN E c o n o m i c a n d Social C o u n c i l (ECOSOC) i n 1967 a n d 1 9 7 0 , k n o w n by t h e i r n u m b e r s as R e s o l u t i o n s 1235 ( U N E C O S O C 1 9 6 7 ) a n d 1503 ( U N E C O S O C 1970), allow t h e U N t o h i g h l i g h t t h e gap b e t w e e n i n t e r n a t i o n a l h u m a n r i g h t s s t a n d a r d s a n d ac o u n t r y ' s behavior, w h e t h e r o r n o t it is p a r t y t o ah u m a n r i g h t s treaty. The p r o c e d u r e s u n d e r t h e r e s o l u t i o n s are i n s t i t u t i o n a l i z e d e x a m p l e s o f h u m a n r i g h t s c r i t i c i s m , w h i c h is o f t e n r e f e r r e d t o as " n a m i n g a n d s h a m i n g : ' T h e o r y i n f o r m e d b y t h e s p i r a l m o d e l a n d e l a b o r a t e d b y C h a p t e r s 3a n d 5

i n t h i s v o l u m e suggests t h a t , as af o r m o f p r e s c r i p t i v e s t a t u s t h a t states g r a n t t o h u m a n r i g h t s n o r m s , t r e a t y r a t i f i c a t i o n m a y n o t p r o d u c e i m m e d i a t e effects b u t s h o u l d c o n d i t i o n s t a t e s ' r e s p o n s e s to m o r e p o i n t e d c r i t i c i s m by e x t e r n a l a c t o r s . The f i n d i n g s i n t h i s c h a p t e r s u g g e s t t h a t o n c e at r e a t y has b e e n ratified, t h e p o t e n t i a l beneficial effect o f f u r t h e r c r i t i c i s m rises. Ifind t h a t n a m i n g a n d s h a m i n g , as r e p r e s e n t e d by a c t i o n u n d e r t h e UN H u m a n Rights C o m m i s s i o n f r o m 1981 t o 2 0 0 5 , p r o m p t e d b e t t e r h u m a n rights c o m p l i a n c e a m o n g s t a t e s t h a t h a d ratified CAT, w h e n c o m p a r e d w i t h t h e effects o n n o n - r a t i f i e r s o r t h e effects o f r a t i f i c a t i o n o r c r i t i c i s m alone. I n o t h e r words, c o m m i t m e n t to CAT s e e m s t o e n a b l e t h e i n t e r n a t i o n a l c o m m u n i t y ' s f o c u s e d a c t i o n on h u m a n r i g h t s to elicit

c o m p l i a n c e . As i m i l a r effect is n o t o b s e r v a b l e at s t a t i s t i c a l l y s i g n i f i c a n t levels for t h e I C C P R , a l t h o u g h t h e d y n a m i c is o b s e r v e d at n o n - s i g n i f i c a n t levels. This g e n e r a l effect, a n d t h e b e t t e r effects for d e e p e r a n d m o r e t a r g e t e d c r i t i - cism, is p r e d i c t e d b y t h e d i s c u r s i v e d y n a m i c o f t h e s p i r a l modeL

N a m i n g a n d ., . . . . . .., .... 5

" N a m i n g a n d s h a m i n g " is s h o r t h a n d for t h e act o f f r a m i n g a n d p u b l i c i z i n g h u m a n rights i n f o r m a t i o n i n o r d e r t o p r e s s u r e s t a t e s to c o m p l y w i t h h u m a n r i g h t s s t a n d a r d s . I t e c h o e s t h e p h r a s e , " m o b i l i z a t i o n o f s h a m e : ' u s e d by Alfred Z i m m e r n to refer to t h e resolute w o r k o f "defenders o f g o o d causes, w i t h t h e p u b l i c o p i n i o n o f t h e w o r l d at t h e i r back" w h o c o u l d expose t h e gap b e t w e e n i d e a l i s t i c r h e t o r i c a n d r e a l i t y t h r o u g h t h e use o f facts ( Z i m m e r n 1939: 470; see a l s o C l a r k 2 0 0 9 ) . F i r s t w r i t i n g i n 1935, Z i m m e r n was r e f e r r i n g t o t h e i m p o r t - a n c e o f p u b l i c o b s e r v a t i o n o f m e e t i n g s o f t h e League o f Nations. Joyce (1978: 8 0 ) l a t e r u s e d " m o b i l i z a t i o n o f shame" to refer to N G O t a c t i c s for p r o m o t i n g h u m a n rights. This chapter's i n q u i r y i n t o t h e i m p a c t o f h u m a n r i g h t s t r e a t y ratif i c a t i o n w h e n c o u p l e d w i t h t h e special h u m a n r i g h t s p r o c e d u r e s at t h e UN - p r o c e d u r e s w h i c h d e p e n d i n large p a r t o n i n f o r m a t i o n p r o v i d e d by NGOs, as "defenders o f g o o d causes" - i s c o n s i s t e n t w i t h t h e s p i r i t s o f Z i m m e r n a n d Joyce i n its focus o n t h e h y p o t h e s i z e d p o w e r o f i n f o r m a t i o n w h e n p l a c e d i n t h e i n t e r - n a t i o n a l limelight. I f r a t i f i c a t i o n a n d n o r m - b a s e d t a r g e t i n g o f s t a t e s are social processes, as sug-

gested by t h e very use o f t h e word " s h a m i n g ; ' we m i g h t e x p e c t h u m a n rights

n o r m s to a c t as r e f e r e n c e p o i n t s f o r r e a s o n i n g a n d a r g u m e n t a b o u t p o l i t i c a l a c t i o n ( K r a t o c h w i l 1 9 8 9 , 2 0 0 0 ; Risse 2 0 0 0 ) . I n l i n e w i t h t h e s p i r a l m o d e l , t r e a t i e s ( a n d t h e o p p o r t u n i t y for r a t i f i c a t i o n ) c a n b e c o n c e i v e d as p o i n t s i n t h e a r t i c u l a - t i o n a n d m u t u a l u n d e r s t a n d i n g o f i n t e r n a t i o n a l h u m a n r i g h t s n o r m s o v e r time. " S h a m i n g ; ' o r c r i t i c i s m , as r e p r e s e n t e d b y t h e u s e o f a d d i t i o n a l U N p r o c e d u r e s , m i g h t be e x p e c t e d t o i n t e n s i f y t r e a t i e s ' effects b y h i g h l i g h t i n g t h e c o m p l i a n c e gap d i s c u s s e d by X i n y u a n Dai. I n l i n e w i t h t h e s p i r a l m o d e l , s t a t e s m a y b e m o r e s u s c e p t i b l e t o a r g u m e n t a t i o n a n d c h a n g e i f t h e y have a l r e a d y a c k n o w l e d g e d t h e l e g i t i m a c y o f h u m a n r i g h t s n o r m s .