Authority: EO Chisf. ReCO~SO& Oeclass Div. WHS Oate: SEP REPORT BY TIlE J-S. t.o the. JUUI'l' CHIEFS OF STAFF

Transcription

1 ,- ".,,.., Re.,.. 2S 0. S22.a COP NO. JCS 2497/24-6 OECLAS'O N 'ULL D5TltBUTOV 3 epteaber 982 Pages - 8, ncl. Authorty: EO 3826 Chsf. ReCOSO& Oeclass Dv. WHS Oate: SEP REPORT BY TlE J-S t.o the JUU'l' CHEFS OF STAFF on JCS REVBW OF THE 977 PRotOCOLS ADD0NAt TO THE 949 GENBVA CONVEMTOHS lu Referenc: JCS 249/24-4 DBCSON. On 28 Beptelber 9J2, )Y telepbone vote, tne Jont Cneb or Staff, after.akng amenamants, approva4 the recoamenoatlons n paracaph 9 of ths repoct. 2. The Bnclosun was sent AS JCSM 29-82, OctOber 982, to the Secretary of Defense. 3. Thls decson replaces the paper. Holdecs lre requested to destroy tbe superseded paper n accordulce w th secur ty regulauons. DSTRBUTON Gen Ve3sey CJCS Gen Meyer CSA) Adm Watkns (enol Gen Gabrel (CSAF Gen Bartow (CHC) Gen Gorman ABBt to CJCS ) Gen Dalton {DJS 6 Gen Prllllllan (J-J (6) 5 (6) (4, ( ( (2) '" \ NTERNAL STArr PAPER J ME eess2tsd 5 Jsa a52 3S uu g t 3 tbs t", 22 OR OAUR THS COY&R PA;B S UNCLASSfED 3mn JCS 2497/24-6 (ppper (evsed by Duoson, 0/ 8t'5'0[N'"

2 _FWD " DECLASSFleo N FU.L "Authorty: EO Chef, Records & Oeclass Dlv, WHS Dates E P JCS RBV&W ot 'l'he ls77 PROTOCOLS ADDTONAr. 0 THE 949 GENEVA CONVENTONS (U) THE PROBLEM. (Ul To respond to a tequest* by the Under Sectetary of Defense for Polcy (USO (P for a prelmnary analyss of the major areas of lkely JCS concern wth the 977 Protocols Addtonal to the 949 Geneva Conventons (the "Addtonal Protocols") FACTS BlARNG ON 'l' PROBLEM 2. On 20 AprU 982, roes ntated** a formal mutary revew of the protocols. TO leet the frst mlestone n the plan :0: the revew, three Servces bavf: pro\'4ed*** thd[ ntal mltary asla8srlent of the protocols. Those assessments addteu haues that lday requre a declaraton,**"* several reservatons,. lnd numerous statelllents of undetstandng.,. Many of the proposed statements repeat or rev ee statements provded by the Jont Chefs of Staff (JCSM tt concernng us qgnatute. J. '" On 30 July 982, the USD(P) requested an nforllal prelmnary but aubstantve analyss of the major areas of lkely JCS coneetn w th the protocols. :n addton to hs " JCS 2497/24-4 ** JCS Apr 8Z, as revsed by JCS 03l24Z Aug 82 u* () Army a orandum, DANO-SSM, 9 August 982, "Army Vews on Ratfcaton of the Addtonal, Protocols to the Geneva Conventons of 949 (U)": Gl fle n Jont Secultual: (Z) Ar rorce HRlorandu.., 3 August. 982, ")5ta'Y Revew of 977 Aaatlonal protocols", 6.n fle n Jont Secretarht (3) Marne Corps Hmorandum: JCS 2497/24-5 * Annex 0 to AppendK A Annex A to Appendx A tt Annexes Sand C to Appendx A Bnclosure to JCS 2497/8-2 eex tlp tb U' 8llCCl$ 5 JUDSh 2 gpsp D _2 tbftll'laj4 JCS 2497/24-6 2

3 CORP S.. DECLASSFED N FULL Authorty: EO 3526 Chef, Records 8. Declass Dlv, WHS Date:SEP request for prelllnary analyss, be requested fnal JCS cecommend.uons on the protocols on or before December 982. Ths requested completon date s the second USO(P) ntatve'" to accelerate tle JCS rev.ew. whle acknowledgng that every effor t wollld be made to accelerate the lll tary revew,.'" the Ser v ces and the Jont Staf f nave ndcated that the Jont Chefs of Staff would provde ther vews on ratfcaton n December 982.*U DSCUSSON 4. Provdng the Secretary of Defense w tl the draft proposed reservatons (Annex A to Appendx A) would lmt the broader range of ssues rased durng the current mltary revew and possbly mslead the OSD staff about the range and depth of mltary concerns. AccordngLy, the Dulctor for Multlateral Negotatons Polcy, 050, aqreed to thl nformal Jont Staff su9gestlon that the draft proposed statements and supportng analyss nclude as Jany ssues as tle Serv ces and Jont Staff had undee stlldy at ths tm and to the extenson of the requested response date to 24 september 982. Further, the supportng analyss would address prncpally those new and revsed (from those provded n JCSM ) proposed tatements under consderaton uther than provde a comprehenave statement encompassng latedal prevously provded to the OSD lt.aff.""""" S. provdn, such stat.ements, e\len on an nformal. prelmnary baals, may llply that the Jont Chefs of Staff may not object to ratf caton of one or both of the pc'otocols. the Jont Chefs of Staff do object. to ratfcaton, the stat.ements v n\)t be requred. * AtEachment to JCS 249/24-2 '" Attachment to JCS 2497/24-3 "' Attachment to JCS 2497/24- See Appendx B Provdng a lengthy f g l S zea:: ala JCS 2497/24-6 3

4 Q '6l 22"'" DECLASSFED N FULL Authorty: EO 3526 Chef. Records & Oeclass Dlv, WHS Date: S EP collecton of statements also may mply that ssues acdressed relect.:l complete :urllcy uf th.: a:;uu,; ullllt'" :all'jy lu( trw 2 Mltary revew; that the.ssues adocessetl may De tesolved only by such statements and not by clal\ges to ll.tary doctr.ne and.. proceaure or to Stat 's practces wth the passage of tllle: and 5 that a complete survey has been completed to oetermne whch protc)cols' proy sons ace new treaty laws versus restatements 7 of treaty or customary law accepted by the Unted States. A 8 separate acton s beng prepared on the ssue of the nonapplcabl ty of the protocols to nuclear weapo.5 that acton ncludes analyss of varous optons tor statements on ths ssue. 6. n 97, the Jont Ch.efs of Staff noted (AppendK D to JCSH ) the ned to develop colron statements for reserva- tons and under standngs w tl other States, should the Un ted States decde to accept the protocols. CONCkUSONS 7. (U) The draft proposed statements and accompanyng analyss n Appendx A and ts anne les should be submtted \:0 the Sectetuy of Defense wth the express understandng that the resj,lonse does not prejudce the JCS tecomendat ons regard log the decson to ratfy the protocols and that the statements do E not reflec\: a comprehensve surlley of all ls3ues under study n the mltary reve Jl'f'The Secretary of Defense should be remnded of the pos- 2S sble need fot consultatons wth otlet States, escally US all.. he should be nformed, however. that the need for such consult.at.ons w\ll not "fleet completon of the JCS revew. 9 0 ll rae-append.x a, subparagraph e ** See Annex D to AppendlK A "'PVt'Wl JCS 2497/24-4

5 en' 2S2ftftMf DECLASSFEO N FULL Authorty: EO 3C526 Chef. Records & Daclass Dv. WHS Date:SEP Rf'.cOMMENDATONS 9. lu t a reoolmlended thatl a. The memoranaula n the Enolosure,.,th Appendx A and Annexes A, 8, C an D, and Appendx 8, reflectng the above conclusons. be sent to the secretacy of Defent;e. 5 b. Copes of the memorandum n the Bnclosure rot be furnshed to other agene as except as authorzed under JCS f. MOP c. Copes of th8 papet be Bent to commanders of unfed and specfed conmanda as a'lthor zed under JCS HOP 39. d. Copes of ths paper be sent to the USMMR to SHAPE and the USLO to AoUon Off oer J xt Conflct Brancb, J-5 S.4hkl JCS 2497/24-6 5

6 ad ECLOSURE rhe JO CHltS OF Sf AFF WMH'NGTON D.C. %OJ':l DECLASSFED N FULL Authorty: EO 3526 Chef. Records & Declass Dlv. WHS Date: S EP Jt;SK o,:tobcc 93 MEMORANDM FOR THB secretary OF DEFENse Subject: JCS Revew of the 977 Protocols Addltonal to the 949 Geneva Conventons (D). f Reference «lemorandum- that requested : analyss of the major aceas of lkely JCS concern wth the 9 t>rotocols Addtonal to the 949 Geneva Conventons. The reqljeat was lmted to thos': ssues that may re-qure US reservatons, f the?reslp.nt should deode to sublllt the protocols to the Senate fot ts advce eng consnt to ratfcaton. 2. rlf'the request for p,oposell res(rvatlons prel\\l:ll's that the Jo;,t Chd's of Staff lay not.,bjllct to rll:f.cato'l.,\5 the ;;on (l[) of Staff r-tatedu n 977. ther fnal p::.jton wth regard t.o (.. :- HcaHon was subject to orc detaled mltary study. 'rhat :ll:ut'ly s currently un<lerway wth a ve.., to\l.:u:d ptovtlln'l JCS t,::oll'nr.ntlnton3 to the Secretary of Defense n Decernber.** The qtat'.mejlts provded n Appendlc A are offered wthout pujudce to th JCS recoendat0ns on the decson to ratfy. 3. ff'l'he mltary tevew of the protocols ho pcl>lressed to tb pt,lnt W:'ere provldn<j you w th reservatons, lnd acco.lpanya;s analy Gs, ""ould renect nadequately the tln<je and depth nt the concnrns under study. Accordngly Append" A ncluclg draft poposat:s fo: statelllents of understandng as well as reservatons for l'roto:::ots and u. t lust be not"[) that ths compllatlon of statelllents 093 not address all tle ssues und"r study at ths tme. One of th., [undaenta ssues nvolvos a survey to determne 'hch pto.. l';ot'. of the protocols contan new treaty law versu5 U:ltatc:;nentG ot treaty la.w or codfcatons of customary law tbat the Unted Stat... has accepted pcevougly. Appendx J\ contans &averal stal.o:::'lmts coneernng the artcle: un letllo.: and m.hlnt: of war.:\tc"" t'o:," "etclcs ate the Bubjoct ot contnued rcvo'n, and or. 3tl,f.,""':lnt: ldj'y hl> needed to acltlcc;3 H;ues. <MSS'Eb 6; bflt l... fhe, 3 t lu 2 Uf tmk, 2 JC 249<4-6 6

7 au 2.2 DECLASSFED N FULL Authorty: EO 3526 Chef. Rl & Declass Dlv, WHS 0&t8:5 E P u f/f Ths paper does not contan statement addtessng thl ncreasngly lllportllnt ssue of the nonapplcal::jty of the r-rotoco':s to n-lclear we.pons. Wble vat'<lty of. legal optons exst to reaffrm ':ha US poston tbat tbe protocols do not apply to the egl ty and use of such weapons, an assessllent s needd as to whethet those optons wll effectvely protect us poltcal and tary nterests. Th.s ssue wll be addressed n a sepacate cmot"andul\l n the neac futute. 5. (U) Appendx A does not nclude an assessment of the ml tat'y ntet"ests suppo,=ted by the protocols, nor an anays8 of the ssue that statements apparently cannot r:esolve. As the mltary revew contnuer, many ssues addressed by ptoposed statellents alght be tesolved by changes n mltary doctdne and. procedure and by changes n States' pnctcea wth tbe p/lssage of tlme. As mpled by Appendx 8, your staff wll con:lnue to be kept nfotmed allout progj:ess of the llltaty revew. Eve.:y effor t contnues to be made to col\lplete the revew n December 982.?O{ the Jont Ch efs of Staff:.. J".A'4 A. :fo';' \..9'"8--- J \ ;S R. J),\L'"lt.; Lc\'tcnnt C:t:"H't"ll, t;:al'" Ol:ec::or. Jont St.:.: t Attachments References:... MelllOcandu.. by the Undet Secrlltacy of Defense foe polcy, 30 July 982, -JCS Revew 0: the 9"7 Addtonal Protocols to the 949 Geneva onyentons (U,... JCSM December 977, Protocols -L nd U HU&r.tarln Law Outng Armed Conflct q... MJC5 9-82, 2 fe)ruary 982, Pro;,:cs5 neport on the JCS Revew of the 97 Protocols Addtonal to th 99 GcnH'l Conventon U'... Artcles <s-sa of Protocol eel"" US en.,yes 2497/ Enclosure

8 ."'PTta,,,nUB DECLASSFED N FULL Authorty: EO 3526 Chef, Record Declass Dv. WHS Date: SEP u 203 APPENDCES A AND B (37 pages) 2 SSdlL. JCS 2497/24-6 u A.ppendce& A and D

9 . ceo,,' bap.l f APPENDX \ PRELMNARY ANALYSS OF THE 977 PROTOCOLS (U. U) n 977, the Jont Chefs of Staff provded* general oomments, a proposed reservaton for use at utfcaton, and proposed statements of unde,standng for use at sgnature and at ratfcaton. bose proposed statements were based largely on DOD Law of War Workng Group revew and analyss.. 2. (U) Ths apndx represents many of the 977 proposed statements atll under conslaeraton as well a8 draft DECLASSFEO N PULL Authorty: EO 3526 Chef, Records & Declsss Dlv, WHS Date:sEP alternatve tex.ts to &Ol\\e of them. New draft: statejller.ts also 2. are presented, solle of whch have been ahared n the nforllal nteragency workng group durng 98. Annex 0 provdes prel.llnary ana nfor.al unalys supplementng that of the DOD Law of War Workng Group" and prncpally provded to support the new texts n Annexes A, B, and C. None of the analyss n Annex D comprf'henavely adcrea.es the esues. SOlle of the ssues. such a8 applcablty to nuclear weapons and changes n tbe law affectng the methods of warfare, reman under study. and ue ntrodllced n the lemorandum to.ssst the OSD staff n substantve analyss c:f those areaa. 3. AS noted n an earler mellorandwl,". the 97 2 Addtonal Protocols are the DOst COplex agreeal8nta ever 22 negohat.ed affectng the law at arllled conflct on and oyer land, JCSM-44&-77, 7 DeceMber 977, Protocols and - Humantaran Law Durng Armed Conflct" ** See melorandum by the Deputy Assstant secretary of Defense, -287/7, 7 November 977, "Protocols and --Humantarlan Law Durng Armed Conflctu* MJCS 9-82, 2 February 982, Progress Report on the JCS Revew of the 977 protocols AddtonAl to the 949 Genava Conventon CU ::::::::;;5 llt P,"ppendh

10 r J "ll&nz... DECLASS/F/eo N FUL.L. Authorty: EO 3626 Chef, Records & Oeclass Dv, WHS Date: SEP (and for solle otber aea and ar operatons). Tht fooll9 or the mltary rellew to date has been on the mpact of the protocols upon unlateral ls mlt tary ope::atons. The Servces and the Jont Staff are also concerned about the mpact of the protocols upon comb ned force opera t ons. The assessments by the commanders of unfed and specfed commands wll addreas that llpact, bllt a oolllplete assessment lay not be possble wthout consultatons wth alled mltary counterparts at the natonal level. 4. (U) Some natons (France and srael) balle ndcated that t.bey wll not accept tle protocos, others have ndcated that they may aooept them t th reserllatons and statements of :mderstanlhng that vary from those of ther alles" (ncludng those under: corsderaton by tle Jont Staff and tbe servces at ths 4 tme, as well as those presented by the Jont Chefs of Staff n 977. For: example, Norway baa accepted tbelll w thout any. reservatons and statementa of understandll9. Aong most as alles, the protocols reman undee revew w thn ther 90llern- ments. C<'nsultatons wth representatves of those alles 9 ndcate that a varety of nsponses to the protocols probably wll occur should each «JOvecom.nt decde to accept thell. 5. The phenol\enon of dfferent natons acceptng an nternatonal greement wth varlous reservatons and atate- ments of understandng s not unque t.o the ptocess of lult- ;Z4 natonal acceptance of tle 977 Addtonal protocols, The 949 Geneva Conventons, for example, haye been :.ccepted by 5 26 natons and wth laryng reservatlons and understandncj8. ''he protocols, however, are more than merely lddtonl to the protecton for the vctms of war under the prollsons of the 29 four Geneva Conventons. The protocols also revse the rules of combat fo, the frst tme n 75 yeats. Thus, they regulate J g g J * NATO lemorandum to the Poltcal Commttee (POLAOS (80)36), 27 loyember 980, "Draft Texts of P088ble leclaratonsl Reserllatons to be made by Alled Countres on Ratfcaton of the Addtonal Protocols to the 949 Geneva Conventons _urn c: 2 Appendx A

11 :..,,.,. UhrlUZ:.. l... the means and methods for the exercse of force. DECLASSFED N FULL Authorty: EO 3526 Chef, Records & Declass Dv. WHS Date: SEP As a result of dfferng operatonal procedures to satsfy varyng legal standards adopted by component natonal governments, combned force m tacy planners and comandars would face potentally un resolvable constrants upon the exercse of foroe. Ths danger also threatens to dssolve the.nternatonal legal consensus among those natons that now adhere to and tran by the co..,nly understood standards expressed n that body of law known 88 the law of armed conflct or the law of war. Thus, the Jont Chefs of Staff may not obect to ratfcaton of the 0 protocols, subjec: to the adopton of certan declaratons and statements of undersl:andng based on a unlateral us mltary 2 revew, but they may object based on the lllpact upon combned 3 fotee operatons. 6. Jllfl'consultatOnS wth alled mltary counl:erparts are net 2. a pretequlste to the copleton of the muhry revew. Consultatons may be needed regardless of the JCS recollllllen- l datons concernng ratfcaton f lon alles accept the 8 protocols. Should the Jont Chefs of Staff not cbject to. ratfcaton, suoh consultatons appear lllperdtve pror :0 20 completon of the US nteragency preparatons of fnal tell:s 2 for us statement' to nmze the danger from "many protocols. 22 The Jont Chefs of Staff noted the need fot consultatons n Appendx 0 to JCSM (U) Ths appendx and ts annexes consttute an nf0"ll, prelmnary analyss wthout prejudce to the fnal assessment of the current mltary revew and the recommendatons by the 27.Jonl: Chefa of Staff to the secretary of Defense Attachments 30 Annex A - Oraft proposed Reservatons at Ratfcaton Annex B - Draft proposd Statements of Understandng 3 for Protocol Annex C - Draft Proposed Statements of Understandng for Protocol t Annex tl - nforllal Prelmnary Mltary Analyss of the 977 Protocols &t4' 6 "[ Aa- 3 Appendx

12 r ' j :. Sh > DECLASSFED N FULL Authorty: EO 3526 Chef, Records & Declass Dv, WHS ANNEX A TO APPENDX A DRAFT PROPOSED RESERVATONS AT RATFCATON (UJ " Artcle-,2 - Emblems of nat Ot\llll ty: Oates E P 'l'he Unted states of Amer ea reserves Artcle 39 :2) and retbns tbe rght to make Use of flags, mltary emblems, 'n89na, or unforms of adverse partes when.ts combatants 6 lare not engaged actvely n an att.ck. 7 Artcle 4 - Safeguard of an e'lemy hors de combatl 8 Tbe Unted States of Amer C reserves that porton of 9 Artcle 4(3) of Protocol callng for the release of 2. prsoners of war when unusual condtons prevent ther evacuaton wth the undrstandng tblt prsoners of war detaned wll not be exposed to hazardous condllons n excess of that experenced by the detanng peraonnel, nor wll those released, f any, delberately be exposed to a azardous condtons. 6 Altkrnatlvely, ths lray be expressed as an understandng: t s the 'JllderstandnC} of the un ted States of Alllerca that the porton of Artcle 4 (3) of Protocol callng for 9 the relea8 of prsoners of war when unusual condtons prevent ther evacuaton does not preclude detanng some 2 prsonet"s of war under hazardous oo.,dltlons not n excess of that experenoed by the detanng personnel, untl such tme as thlt pc soneu of war can be evacuated. t Artole 47 - Mercenares: The Unted States of Amerca reserves Artcle 47 of 26 Protocol, belevng that an ndvdual should not be dened combatant or pesoner of far rghts because of status 28 snce the subjectve cdtera are not an adeq'jate bass to defne that status. 30 WtUhttb s' 82ttSCOl, a 3 Q'U 2 Ol 2. S c 4 Annex A to Appendx A t

13 .\ '.'. t 'j. j ' : l.mlbeuz f. f'.artcles hostltes: DECLASSFED N FULL Authorty: EO 3526 Chef, Records & Declass Dv, WHS Date SEP 3 n 03 General protechon ganst effects of The Unted States of Amerca reserve$ Artcles 48 through 56 concernng the general protecton 8<}anst the effects of 4 hostltes to the extent that no member of the unted 5 States armed forces may be punshed or subjected to any 6 dscr mnatory treatment by another Hgh Contractng party or party to the conflct for any act or o.. sson n alleged volat.ons of these art:cles, except for the grave breaches defned or referred to n Artcle 85 of Protocol. 0 (U) Artoles 5 and 52 - Protecton of the cvlan populaton and cvlan objects; Notwthstandng the provsons of Artcle 5, 3 paragraph 6, and Actlcl.e 52, paragraph l, the Unted States ot Amerca reserves te rght / n the event of massve and 5 contnun9 attacks drected aganst the cvlan populaton,. to take reprsals ag... nst the cvlan populatlon or cvlan objects of the State perpetratng these llegal, attacks for the sole pucpose and only to the extent 9 necessary to brn'} the llegal attacks to an end. These measure. shall not lncl.ude any of the actons that. are 2 otherwse prollb ted by the Geneva conventons of 949 or 22 ths Protocol. 23 ALTeRNATVE Notw thstandng the provsons of Artcles 50 thcough 56 of Protocol, the Un :ed States of Aller lea reserves the 2 dght to take measures otherwse prohbted by those Artcles aganst persons and cvlan objects of any Party 29 protected by t.hose Artcles, f the Unted States decdeol 2 { f. t " CONfDEd 22 5 "nnex " to Appendx A

14 "''''$5'2 V.. DECLASSFED N FULL Authorty: EO 3526 Chef, Records & Declaas Dlv. WHS Date: SEP that massve and contnung attacks by that Party n volaton of those Artcles have been drected aganst ts cvlan populaton or objects or the cvlan populat:on Of 3 obj&ctb of any of ts alles, or that systematc and 4 contnung volatons of the Th rd Geneva Conventon of 5 :. ].. ; l ;. J 2 AU<)ust 949 are beng taken aganst ts personnel n the hands of that party, for the sole purpose and only to the 7 extent necessary to brng to an end those llegal attaoks or volatods, and only after formal wat'nng. to that party [equt'ng cenaton of the attacks has been dsregarded, and then only after a decson taken at the hghest level of govemlllent. These lea,sue'es shall not ncl<lde any of the actons prohbted by the Geneva Conventons of 2 August 949 for.the protecton of war vct;ns. : J :, : '"... torp benlkl 6 Annex A to Appendx A

15 j.. "lsa: s..- DECLASSFED N FULL Authorty: EO 3526 Chef, Records & DecJass DY, WHS Date: SEP ANNE 8 TO APPENDX A DRA'P'l' PROPOSED STA'l'EMENTS OF UNDERS'l'ANDNG FOR PROTOCOl.. U) (U) Artcle - ProtectDn of pusans. f ot.her State; ellpress understa.,.,ngs that Artcle as a whole does not 2 4 apply to ther own natonals who are deprved of Uberty as " result of arllled conflot, the Unted States should repeat the followng understandnq that ts delegaton made durng the Plenary of the Conference; 9 Paragraphs and 2 apply to: () -.>erson& who are n the power of an adverse Patt.y." J '., ' ' Ths lncludu all prs()ners of war and. cvlans pro- 2 tected by the Fourth Conventon, Whether n the terrtory of the detanng power or n occupled terrtory. t noludes those ",ho arc relatvely free to pu[se ther normal pursu t.s. as well. those who ar nterned or otherwse deprved of lberty. t apples also to (2) Otber persons, lncludlng the Party's own natonals, who aee nterned, det.aned, or othelv5e aepclved of lberty /l,s a result oe hostltes 0,; occupaton. 20 lt s the further undeutandng of the cnted states of Amerca tllat the evls galnst whlc'h ths artcle s 22 drected ace unjustfed aets or omssons, by ot on bellah 2 of the occupyng or detanng power or by any detanng authortes that endanger the physcal Qr mental health or 25 ntegrty of the persona delccbed n paragraph. Source; JCSM (tjl Artcles n, 65, and 6 - Dscontnuanc... of protecton of 28 cvlllln medcal unts Cessaton ot protecton, Members; of the armed [orces and mltary unts assgned to clv defense :;s:::::: S 'C) 5 (.Z Sdtltm3, Annex B to Appendx

16 > f, r.. h saa l'fte= DECLASSFED N FULL... Authorty: EO 3526 Chef, RrcU> Dec/ass Dv WHS Dete: St P,j u 203. organ zatons: These artcles deal wth the- arllng of medcal. and cvl defense personnel and the use of force by the... 2 Xt s the understandng of the Unted Stlltes of Amerca 3 tha t the ten lght ndvdual weapons, as 'Jaed n Artcle 3, paragraph 2, Artcle 65, paragraph 3, and Act ela 67, paragraph, excludes fragmentaton grenades and smlar devces as well as weapons that cannot b" handled or, fred by a sngle ndvdual, and those that are prmarly 8 ntended for materal targets such as armored vehcles or 9 arcraft.. 0 X t s the fur the: understandng of the Unted States of Aller ca that medcal personnel and cvl defense personnel may be arllled only for tle purposes specfed n Artcles 3 and 65. The term "defense u as used n these provsons 4 ref ers to defense aganst marauders and othec crmnal > j lnctvlduals or groups. They may not engage n combat 6 aganst the adverse party and they may not use force to res st captute. 8 however, they are unlawfully attaclced by ndvduals of the adverse Part.y's forces, they may use ther weapons n self-defense and the defense of the wounded and sck n 2 ther charge after havng.ade a reasonable effort to 22 dentfy the_selves. 23 Source: JCSM > (U) Ar tcl. 6 - General protecton of medcal dutesl other States make understandngs or reservatons on ths f 25 j ' provson, t wll be necessary to make an nterpretve statement along the followng lnes; Althou9 the law of most countres recognzes a medcal prvlege of nondsclosure.. natonal law almost unversally 30 requres certaln dsclosures from doct.ors. These 'nclude 9 Annex B to \ppendlx A

17 r.u lasu PfR&» COllpu80ry reports of colulunlcable dseases as specfcally recognzed n the last sentence of paragnph 3, as well as DECLASSFED N FULL Authorty: EO 3526 Chef, Records & Declass Dv, WHS Date: SEP other matten. Members of the me"cal professon recognze 3 that ther ethcal oblqaton s not to make dsclosures 4 concernng tber patents except as requred by law. Ths 5 rule, whch s applcablt> n peacetme, must rellan equally t l, j " applcable n tme of armed conflct n respect to the relaton of persons enqaged n medcal actvter and the authortes of ther own party to the conflct. nter- 9 natonal law properly may requre these authortes to. respect ebe medcal pc -/Hege except as specfcally lmted. by natonal law. 2 Or: the other hand t s reasonable to prohbt the advert'. Party frod requrng doctors to aot as collab- orators. Thus, paragraph 3 prohbts anyone belongog to a party adverse to that of the doctors to COlpel any dsclosure whch would be harllful to a patent. Nevertheless, t provdes that regulatons for the copulsory dlaclo.un of communcable dseases be respected. Ths effects a sound and reasonable balance between lechcal 20 ethcs and the prot.ecton of patents on the one hand and the reqjrements of publc health on the other. When confronted wth the choce between concealng the dentty 23 of a resstance fghter n occuped terrtory and preventng t. cholera or: smallpox epdemc, the decson mullt be n favor of publc health. Source. JSM Artcle 28 - Restrctons on operatons of medcal alrcraf t t s the understandng of the Unted States of Amerca that the provson n Ar: tcle 28 (2) prohb tn9 medcal 6 7 U 29 3 l G4E 2.. " 9 Annelt B to Appendx A

18 ., " _:tu,.... DECLASSFleo N FULL Authorty: EO 3526 Chef. Records & Declass D;v WHS Date: SEP arcraft from carryng equpment used to collect or transmt ntellgence data does not preclude the presence and use of C<lunclltons equpment and encrypton materals needed to facltate navgaton, dentfcaton, dnd communlcaton n suppoct of medcal operatons. Artcle 39 - Emblems of natonalty 6 [ s the understanchng of the Unted Statlls of A.letca that the oblgator.b of Artcles 86 and 87 of Protocol [ do not apply to volatons of Artcle 39(2) of that prot.ocol. (Ul Artcles 4, Sf«57 r "feasble, 58 ( 78«and 86 - Defnton of n relaton to Al'dcles 4, 56.57,58,78, and 86 of Protocol, t s the understandng of the Unted states of Amerca that the word.. feasble" means that wlch s 3 4 S 9 g practtca:lle or practcally possble, takng nto account all S crctastances at the tme, ncludng thosa relevant to the SUCCfSB of mltary opel'atons, (U Artcle Occupants of arcraft: SOlle countres may make ether cebervatons or understandngs to ths atce. f 9 ths s dona, t may be necessary to have a US undentandncj l'eflectng the vew that the l'equrellents of Artcle 42 codfy 2 exstln tntunatona law and thus cannot be the subject of reservatons. source: JCSM (U) Artcle 44 - CObatants and pc eoners of war: a t 8 the understandng of the Unted States oe Amerca thatl 27 () The s tua t ons deser bed n the second sentence of 28 paragraph 3 are very exceptonal and can ust only n 29 occuped terr tory or n armed conflcts descrbed n : Artcle, paragraph 4, of th,s protocol. E f 0 Annex B to Appendx A [

19 - -cea'uawrre-- (2 The phrase n paragraph :4 (b) "mll t8t"y deployment precedng the launchng of an attack" means ny movement toward place from whch ln attack s to be launched, and (3 Falure to meet the requrements of the frst DECLASSFEO N FULL Authorty: EO 3526 Chef, Records & Declass Dlv, WHS Date: SEP j - sentence of paragraph 3 s a breach of Pt"otocol, whch tends to endanqer the c vll," populaton. Any combatant who s gulty of /luch a breach may be tr ed and punshed for the offense of falng to dutngulsh hmself froll the cvlan poplllaton. (4) Combatants who fal to meet the mnmum requrelllents of the second sentence of paragraph 3 forfet ther CObatant status and Jay be tred and punshed aceordngly. Source: J::SM E S W"'WS 22G Annex B to Appendx A [

20 OeCLASSFEO N FULL Authorty: eo 3526 Chef, Records 8. Dec/ass Dv. WHS Date: SEP j, ' -, dt" &&... ALTERNATVE t.s the undeutandng of the Unted States C[ Ameeca that: a. Falure to meet the requrements of the frst sentence of paragraph 3 of. Artcle 44 ot Protocol s a breach of the Protocol whch tends to endanger tbe cvlan populaton, and COllbatants who are gul.ty of a breach of that sentence ay be tred and punshed for the offense of falng to dstngush themselves from the clvlan populaton but do not lose, therefore, combatant or pc soner 'f war status unless they also vtolate the second sentence or paragraph 3 of Artcle 44 of Protocol t. b. Combatants "he fal to meet the mnmum [equ cements of the second sentence of paragrapl\ 3 of Artcle 44 of Ptotocol forfet ther combatant status and may be tred and punshed for acts whch would ot.herwse be consdered lawful acts of combat, but wll otherwse.:eceve equvalent protectons as f they were prsoners of war. c. The stuatons descrbed n the second sentence of paragraph 3 of Artcle 44 of Protocol are very exceptonal and can exst only n occuped tentory or n armed oonflcts descrbed n paragraph 4 of Artcle of protocol. d. The hral:e "dudng such t.llle as he s vsble to the adversary as used n sllbparagraph ] (b) of Artcle 44 of Protocol establshes an objectve 8tndard whch ncludes voblty through the use of 8Ch ads as bnoculars and tnfraced devces 'L 9. :. 3 ;t' ll. AlE 2Snl'6Wr 2 Annex 8 to Appendx A

21 DECLA8lflO N /full Authorty: EO 3626 Chef. RCRrqs Declass Dlv WHS Date: St.r u \ j J J -, J 46ABCSUlldL e. The phrase "mltary deployment precedng the launchng of an.. ttack" n subparagraph 3 (b) of Artcle 44 of Protocol means any Ovement toward a place rol whch an attack s to be launched. f. Wth regard to paragraph of Artcle 44, where members of the reguh.r armed foeces are assgned as advsors to rregular resstance groups, they wll not be requred to wear a urfon, but lust nst.ead dstngush tb elves fe'om the cvlan populaton n the eame LaRner a. the rregulars under t.he second sentence of paragut'h l of Artcle 44 of Protocol r. (U) Artce 45 - protecton of persors ho have taken part n hostultlell; t s the underst.andn,} of the Unted States of Amerca that "rtel 5, paragraph 3, cannot be conatruecj to resuct far tr lal guarantees unde.:: the Thrd Conventon anll ths Protoool whch are secured to certan persons under Artcle 44, paraaraph 4. ALTERNATVE t s tbe understandng of the Unted states of Amerca that paraqraph 3, Artcle 45, of Protocol Cannot be construed to restrot far tral guarantees undu the Ttl.:d Conventon and Protocol whch are secured to certan peclons under paragraph Artcle 44 of P,"otocol. ( Artcle 46 - Spes: t s tle underst:\ndng of lhe Unted States of mer lea that the elements of esponage, as that term s used n Artcle 46, are the same aa those lsted n Artcle 29 of the Haque Regulatons Annexed to lague COllventon Number V of 907. Source: JCSM M 29 Q. 3 ".UllS hac 3 Annex B to Appendx A

22 J gm' Ulll'tr (U Artcles COllandecs' Assesslents: DECLASSFED N FULL Authorty: EO 3526 Chef, Records & Decless Dv, WHS D2t EP 3 a 203 t s the unde::standlng of the Unted States of Alaeclca that commanders end others responsble for plannnq, decdng upon, or ekeoutng attacks necessarly have to reach decsons on the bass of ther el5sessrlent of the nformaton holl all BOutCeS whch s avalable to them at the relevant tlle. Ths s appl.cable to Part V, Secton, of Protocol, ncludng Artcles 50, 52, and 5. Source: JCSM ALTERNATVE t s the understandng of the Unted States of Amerca that the provsons of Part V. Secton of Protocol, j naludn Artcles 5, 52, and 57, must be appled to the aotons of col\ll\landecs and others responsble for plannng, decdlll9 upon, or executng attacks, on the bass of ther assusllent of the nformaton reasonably avalable to them at the tme they take ther actons and not on che bass of hndsght. (U) Artcles 5, 52. and 57 - Protecton of cvlan populaton and precaatons n attack: t the understandng of the Unted States of Amerca that the references n Artclel 5, 52, and 57 to mltary advantage antcpated from an attack are ntended to refet to the advantac)e antcpated from the attack consdered a8 a whole and not ollly from solated or part.cular parts of that attack. The term "mltary advantage- nvolves a varety of l ; conslderatons, ncludng the secur ty of attacknq forces. t: s further the understandng of the Unted States of Amerca thllt the term Aconcrete and drect mll tary advantage antcpated" used n Artcles 5 lnd 57 means an eo mp 4 Annex B to Appe nd lc A

23 lon. M":... lone8: expectaton that the attack wll make a relevant and proportonate contel buton to the pur pose of t.he attack. Source: JCS-U8-7. ' Artcles 5-5b) 52-2, and 57-2 (a) ( ) - proecton of tle cvlan populaton and cvlan objectsl precautlons n attack: t s the understandng of the Un ted states of becea that col4teral cvlan 0SS98 are measured aganst: the mltary advantage antcpated frod an overall callpagn or war consdered as a whole and not feom ts solated or pl.lrtcular partll and that collateral c vulan losses are excessve only wben they are tantamount to the ntentonal DECLASSFED N FULL Authorty: EO 3526 Chef, Records & Declass Dlv. WHS Date: SEP attack of tb. cvl an populaton. or to the total dsregard for th. safety of the cvlan populaton. Wth Ulpeot to Artcle 5(8). t s the understandng of the Unted States of Alerca that cvlan casualtes. resultng from actons n volaton of Artcle 5 (7) are the responsblty of the party volatng that provson, and that volaton of Artcle 5 (7) may not render an otherwse 20 leg tmat. target mmune fro.. attack. (U Artcle 52 - General protecton of cvllan objects; 22 Artcle 52 s a scjnfcant and lmpor tant development n 23 the humantlran law appllcable n armed conflct. The dstncton between cvlan objects and mltary objectves wll be Made easer to ldentfy and recognhe. n that 26 regard, t s the understandng of the Unted States that a specfo area of land may be mltary objectve f, because of ts locaton or other reasons specfed n Artcle 52, ts t.otal or partal destructl.on, capture, or neutcaltaton, n the crcumstances rulng at the tme, offers a defnte mltary advantage g l csm 5 Annex 8 to Appendx A

24 r j j '2bEkXC DECLASSFED N FULL ",.. Authorty: EO 3526 Chef, Records & Declass Dlv, WHS Dates E P The frst sentence of Artcle 52, paragraph 2, prohbts only' such attacks as may be drected aqanst nomlll tary J t J objectyes. t does not deal wth the queston of collateral dallaqe caused by attacks drected aganst mltary objectves. Source: JCSM ALTERNA'l'VE t s tbe understandng of the Unted States of Ametca that; a. n relator. to Artcle 52 of protocol, a spec f c area of land lay be a mltary objectve f, because of ts locaton or other reasons specfed n the Artel.e. ta total or partal des tructton, capture. or neutralzaton n the crcumstances rullnq at: the tme offers a defnte m.ltary adyentage. b. t s the further understandng of the Un ted States of A dea that thl fnt sentence of Attcle 52 of protocol, paragraph 2, ptohlbt:s only such lttacks s fray be drected aganst nonmltary objectves and t does not deal wtb the queston of collateral damage caused by attacks drected aganst mltary objectlves. (Ul Artcle 53 - Protecton of G;ultural objects and of places of worshp: s the understandng of the Unted States of Aller lcl thatl (ll Artole 53 does not replace exstncj custolary law prohbtons expressed n Artcle 27 of the 907 Hague Regulatons. Rather, the Artcle estabhsbes a specal protecton foc a lmted class of objects, whch, because of ther rec09naed mportance, consttute a part of the specal her tage of mank OO n &A s U" 6 Annex 8 to Appendh A L

25 r.etrrn777j.al (2) U.e of objects tsted n Bupport of the mltary DECLASSFEO N FULL "" Authorty; EO 3526 Chef. Records & Oeclass Dlv. WHS Date: SEP 3 D 203 effort s volaton of the Artcle. 3 (3) Such a volaton causes the objects to lose the specal protecton of ths Artcle. 5 Source: JCSM ALTERNATVE 7 t s the under standng of the Unted States of o\medea thatl o. Artcle 53 of Protocol establshes a specal protecton for; 0$ lmted clou of objects whch. bacaute. of ther recognaed mportant'e, consttute a part of tbe cultural or spltual hectaqe of peoples, ahd that such l objects wll lose ther protecton f they are used n support of the multny effort. b. The prohbtons contaned n subpaugraphs (a) and 6 (b) of Art'cle 53 of Protocol wll not applj' n cases 7 _peratyely requred by mltary necessty. l Artcle S4 - Prot.ectloR of objects ndspensable to the 9 cvlan populaton: t s the understandng of the Unted states of Amerca 2 that the phrase "wthn such tercltory under ts own control- n paragraph 5 of Artcle 54{ apple8 only to the 23 natonal terrtory of tbe Qefendet and not to areas whch be may then occupy. lu Artcle 63 - Cvl defense n occuped terctores; t s the understandng of the unted States of Alllerca tha t Artole 62 apples to both occuped and nonoccuped terrtory. Artcle 63 8 thus supplementary to Artcle 62 as far as occuped terrtory s conoerned. Artcle 63 of the Fourth Conventon s a80 applcable. Source: JCSM ;l5 26 n 29 J L Xl btn l ke- 7 Annex B to Appendx A

26 "n SUUlL DEeLAlSll'leD N "ULL Authorty: EO 3526 Chef. RecordA Deelas Dlv. WHS Date: SEP., U 203. ALTERNATVE t s the understandng of the Unted States of Amer lea 3 thac the actvtes of cvl defense orqanzatons referred to n Artcle 63 of protocol ate subject to the 5 lmtatons of the second sentence of paragraph of 6 Attcle 62 of Prot.oool. && well as \.:tr.le 63 of the Fourth Conventon. (U) Artcle 66 - dentfcaton: 9,, t s the understandng of the Onted States of Amerca that any sgnals whch pactea to a oonflct shall agtee to use for cvl defense dentfcaton purposes, 8S g contemplated n paragraph S of Artcle 66, Shll dffer from dstnotve sgnals specfed fot the dentfcaton ellclusvely of medcal un ts or transports n Chapter of l Annex to Protocol. Soutce, JCSM [} Artcle 75 - Fundamental guacantees: 8 t Ls the understandng of the Unted States of Amerca that ths Artcle protects all persons not otherwse 20 specfaally protected under the Conventons and Protocol 2 by more specfc and elaborate guarantees. The Unted 22 States of Amuca further understands that all?artes Blust meet these standarels of humane treatment at all tmes and n 3.. au crcumstances. The Un ted states of Amerca rejects any 25 reservaton or understandng whc' attelrpta to lmt the class of persons to whch ths Artcle apples other than those who are expressly excluded by the language of the l' "7 28 Artcle. Sourcel JCSM ALTERNATlvt: t s the undeutandlng of the unted States of Amedca that Artcle 75 of Protocol apples to all persons n the L OU'''Q'WD ( 8 Annelt 8 to Appendx A

27 DeCLASSFEC N FULL Authorty: EO 3526 Chef, Records & Declass Dv WHS Date: SEP power of a Party to a conflct, ncludng accused, suspected, and convcted war crmnals, and unpryleged combatants. The Un ted States of Aller ca rejects all nterpreta:.ons whch would lrrt the scape of Artcle 75 of Prot-Q(:ol. (0) - nternatonal Fact-Fndng Commsson: The Unted States of Alllerlca recognzes the competency of the nternatonal Pact-Fnd "9 Commss on provded for n Artcle 90 of the Protocol pso facto and wthout specal agreellent wth respect to any other Hgh Contractn9 Party acceptng the same obll ' t on. Source: JCSM f Artcle 96 - Treaty relatons upon entry nto force: t s the undllrstandng of the Unted States of Amerca n relaton to Artde 96(3) that only a declaraton made by. a body whch s genunely an author ty rep[esentng a people l engaqed aganst \ Hgh contractng par ty n an armed conflct of the type,eferred to n paragraph 4 of Artcle can haye the ElffectR stated n paragraph 3 of \rtcla 96 and 20 that t 8 also neclssary cond tlon that the body conc8[led be [ecoc;jnwc by the Hgh Contractlng Party as 22 reprcbentng the people n queston g l 5 ll. 27 J 28 _EWE ; 9 Annex 8 to Appendx t. L

28 r j ega. BN MP ANNEX C TO APPNOX A OR."", PROPOS8D STA'l'BMENTS O' UOmulT"NDNG FOR PROTOCOL (UJ (U) Protocol - Defntons: t s the understandng :>f the Un ted: States of Amedca that the terms used n Part of ths 't'otc)col, whch are the same as the terms defned n Artcle 8 of Protocol, shall be construed n the salle sense as l:'ose def n tons. DECLASSFED N FULL AuthOrty: EO 3526 Chef, Records &. Declass Dv, WHS Date: SEP Source: JCSM AL''EaNA'l'VE < t s the undeestandng of the unltecl States of "merca that the tents sed n Protocol, whch are the same as the terms uaed n Protocol, shall, so far as relevant. be construed n the same sense as those defnt.ons. (U) Atcle Protecton of medcal un t and tcansports: n acceptng Artcle, Pt'otocol, the Un.ted States of Amerca wshes to make t cleu that humantar an functons of medcal unts and tunaport$ cannot, under any crudllltanc.s, nclude loatle acts. W th reqard to Ar tele of protocol. t s the understandng of the Unted States of Amerca that the acts descrbed n Artcle H of protocol, as well as those facts and condton. lsted n Artcle 22. Flr.t Conventon, Artcle 35, Second Conventon, and Artele 9, Fourth Conventon, do not justfy cessaton of protecton of medcll unts or transports. Source:,lCSM-448-n. (U) Artcle 6 protecton of cultura.l objects and of places of worchpl. 4 S, 8. 0 l etass lb at MkEdS ) d'l:s.. h 2 84 MSlt Qua Tt; 20 Annex C to Appendx L

29 DECLASSFED N FULL Authorty: EO 3526 Chef, Records & Declass Dlv, WHS Date: SEP aee2ldca : s the understandng of the Un ted States of AAlerca that tbs Art lah establshes protecton foe a Lm ted cla$s of objects. whch, becallse of ther r eo09n zed.. pactnnce, consttute a part of tbe bertage of manknd. We note that use of these objects n support of the mll tll[y effort s a volaton of ths Artcle. Should they be 80 used, t s our clear undetstandng that theae objecu wll 08e tha spechl protecton of the /)ort08. Source JCSM-44e-77. ALTERNATVE t s the understandng of the Unted States of A'erca that ArtcLe 6 of protocol establshes a specal protecton for a Hl ted class of objects, whch t ther recognzed llllportallce, consttute a part of the because of cultural or sprtual hertage )f pooples, and that such objects wll lose ther protecton f they are used n support of the mltary effort. (lt s the further understandncj of the un.ted States of Amerca that the prohbtlonl Clontaned n Artolo 6 of Prot.ocol wll not; apply n cases mpetatvely requred by mltary necessty. (Ul Artcle.- - Relef soclet es anc relef actons: wth respect to pau\uaph of Artcle 8, t s the understandng of the Unted States oe Amer ea that ovlans who have, spol'\taneouly oc n [.. ponae to an appeal from t:he authorl Ues, colleoted and cared for the woul'\ded, sck, and shpwrecked, and members of relef socetes who have performed ther tradtonal functons n el.ton vchms of the arlllld conflct, shall not be harmed. to th prosecllted, convcted, or pun.shed for slch humantaran acts. Soutce: JCSM , l' L8 ll. 26 rr. 3 L CUP 0t4hU 2 AnneK C to Appendh l\.

30 r oem P ML -.. ANNEX D TO APPENDtX A DECLASSFED N FULL Authorty: EO 3526 Chef. Records & Oeclan Dlv, WHS Date: SEP NFORMAL PRELMNARY MLTARY ANALYSS OF THE 9 ptocols (0). (U) The followng prellmlnary and nformal mal tary analyss supplements the 977 JCS memorandum. and the analyss provded at that tlae by the 000 Law of War Worltnq Group rel/ell and analyss.** S 6 RESERVATONS 2. Reservaton on Artcle 39 - Emblems of natonalty: a. The present law permts tl:e use of flags, mltary emblems, ns9na, or unforms el a ruse as 0n9 as the ruse s dscarded pror to actuel combat. US Army publcatons have recognzed ths prlncple of nternatonal law up to and ncludng tbe moot recent verson of FM 27-0, "Law of Land Warfare," whch states "n practce t has been authorzecl to malee use of natonal flags ns9na, and unforms as a ruse" but notes "t s certanly forbdden to employ them durng combat." b. n 947 Naz General skorzeny was tr ed for, and acqutted of, usng ths ruse (US unforms, vehcles, weapons) durng the BattLe of the 8uge. Durng the tral, the defense establshed that both sdes had employed such tactcs On numerous occasons. c. The Sovets made wde use of enemy unfotms durng World at. Open-source documents clearly ndcate the Sovets contnue to follow ths practce n ther operatons. d. Acceptance of Artcle 39(2) has no humantaran beneft. e. Acceptance of Artcle 39(2 would vastly COplcate hostage release and counterterrorst operatons as well as certan unconventonal warfare operatons. -, JCSM , 7 December 977. "protocols and - HURlcnltaran Law ouc"9 Armed Conflct- See memorandum by the Prncpal Deputy Assstant secretary of Defense (nteuatonal Secur ty Affa rs) t -287/7, 7 November 97, Protocols r and - lumanh.aran Law durng Armed Conflct" g, BS4 lad"

31 , =w J. Reseevaton on.ttcle 4 - Safeguard of an enemy de combat:. Artcle 9 of the Thrd Conventon requres that ptsonen of war (PWs) be evacuated as soon as possble and that they not be "unnecessarly ekpoqd to danger whle watll<j evacuaton." Artcle 4 requres tnll:.,hen these condtons cannot be met "they shal.l be released and all feasble precautons taken to nsure ther safety." b. Under current Army doctrne, evacuaton of PWs wll be dff cult. The ar-land battle doctr ne and other tact.cal nnovatons ncreaslnqly call for ndependent smlll-un t operatons. ':urrent law s based on prellous conflcts tlhch ba4 well-establshed lnea of colluauncaton that permtted evacuaton of PHs as a matt.er of rnutne. C. A 9all unt, operatng ndependently, s faced wth a dleljlma, Whle crcullstll'lcls w.lll at se when PW8 wll be released because of.the ::apturng ur.t's nablty ether to cont.."ol or to evacuate thel, t should not be made law tnat release s mandatory. 'n solated unt capturng a hghrankng ndh4"'al, Ot an ndlvdual wth spechl knowledcje, may choose to detan ths ndvdu.l untl such tme as evacuaton s possble. Tbe pract.cal Umtaton s the ablt.yof the detanng unl to SEcure the ndvduals captured. 4. Reservaton on Artcle 4 - Mercenares:. Artcle 47 denes combatant and PW status to certan persons. An nnovaton n nternatonal law, t.he Artcle would elpose mercenares to punshment under local law for the r colbatlnt acts. b. The defnl t lon of mercenary :tcorporated n t.hs artcle s heavly subjectve and capable of poltc- zaton. The Sovet have Lndlcated that only those DECLASSFED N FULL Authorty: EO 3526 Chef. Records & Oeclass Dv, WHS Date: SEP J l ll S 2 2 2S l 23 D to A nnell ppendx L

32 -- DECLASSFED N FULL Authorty: EO 3526 Chef, Records & Declass Dv, WMS Date: SEP Mat loamaj opposng struggles of the people for natonal lberaton froll mperalot, racst, or colonal regmes can be 2 consdered meroenares. Under ths subjectve, poltczed usage, us advsers, Mltary Assstance Tranng 'Teams, 4 etc., could be tred as mercenares for lawful acts. e. The US ArlllY has a long hstory of mercenary use begnnng 6 wth ndan scouts and contnung through the Vetnam era. 2. These people would be dened PH status, f captured, and 8 ther use for clandestne or ntellgence gatherng 9 operatons s often necessary: () ''0 overcollle languaqe/dalect defcences. (2) To tplot geographc knowledge of ndgenous g perlonnlll. l (3) To collply wth US c.'folllestc law and polces restrctng lhe presence of us pecsonnel n certan 5 areas.. d. Adopton of ths artcle lould be a step backward n 7 humantaran law. By denyng a "mercenary" PM l>tatu5, regardless of hs conduct, tbe artcle n effect encoltages 9 the ercenary to act wthout regard to the norms of warfare 20 and the law of lat. For hm, the penalty s the same no 2 matter what bs conduct ReserYaton on Artcles 48-8: 23 a. nternatonal agreements usually create rghts and dutes only for tbe natons party to them..8 an excepton to ths 25 rl'le, bowever, th.. Unted States Government has taken the 26 poaton that "eyery volaton of the "" of war s a war 27 ccllll8, for whch ndvdulls clln be punshed (DA FM 27-0, July 9S6, pau. 499). Ths standard appears appropr ate 29 for wllful, delbp.utp. acts n volaton of the law of war, 30 such as the lurder of nterned cvlans or the torture of "UP JlRd' 24 Annex D to Appendx L

33 r DECLASSFleo N PULL Authorty: EO 3526 Chef, Records & Declass Dv, WHS Date: SEP S' PHs. t s not, however, approprate to attach tle label war or ae" to devatons froj the law that may occur through an error n judgaent or lnor carelessness n the heat of combat. Ths h especally true ()f ar operatons, J where collatlral dantage to cvlans s nevertheless often S characterzed as a war crlle for propaganda purposes. b. Artcles 48 to 58 of Protocol contan general rules and. prncples for the conduct of cotlbat operatons aganst :arqets on land. These rules are pbrased n broad, flexbl. e 9 terms, as s proper n a treaty establshng prncples of behavor for: sove(flgn governments. Many of them are, however, too geneul to be fully accetptable as standards for ndvdual crmnal responsblty e.g., Actele 57, pangraph 2 (al (l), whch requus those who decde upon an attack to do everythng "feasble" wth a vew to "avodng.. and n any event lftnlllznc), ncdental 0ea of c an lfe" and pl'operty. On the bass of experence n recent 7 conflcts, t e qutp. lkely that an unsorupulous adver:sar y could take t:he general language of Artcles 48-58, CObne 9 t wth the poston that "every volaton of the law of war. s a war crlme,m and tllrn botb aganst US forces. The effott mght thus be made to categorze captured arorew members as "war crmnals because they had not taken some suppoaedly "feasbl.e" pncauton dutng an attack. c. The efter-t of the proposed rnervaton would be that 2S other natons could enter nto treaty relatons wth the 26 Unted sut.e3, on these Artcles, only by agreeng that they would not form the bass for cr.nal lablty for ts personnel. f any patty to the protocols rejected t.he US 29 reservaton. the effect would smply be that Artcles 48 to 58 would not be n force as between the Un te<l States and 3 that party. cmw b2n XC.. 25 Annex D to \ppendlx A l