Can You Get Away With Any Crime if You Have Diplomatic Immunity?

Pretty much, unless your own government gives you up.

BY JOSHUA E. KEATING | FEBRUARY 15, 2011

The U.S. government has launched a high-profile effort to secure the release of Raymond Davis, a staff member at the U.S. embassy in Islamabad, who was arrested in late January for the fatal shooting of two Pakistani men in Lahore.* Davis's job at the embassy and why he was carrying a gun is still unclear. The Lahore police department has not yet filed charges but is treating the case as a murder, and demonstrations have been held demanding Davis's prosecution. Davis claims that he acted in self-defense after one of the men, brandishing a weapon, approached his car on a motorcycle. According to the United States, Davis, as a member of the embassy's staff, enjoys diplomatic immunity from prosecution. Does he?

Most likely, yes. The rules concerning diplomatic immunity are set forth in the 1961 Vienna Convention on Diplomatic Relations, which has been agreed upon by 187 countries -- including the United States and Pakistan. The treaty states clearly that diplomatic agents including "the members of the diplomatic staff, and of the administrative and technical staff and of the service staff of the mission" enjoy "immunity from the criminal jurisdiction of the receiving State." They also enjoy immunity from civil proceedings unless the case involves property or business interests unrelated to their diplomatic duties.

The U.S. Embassy has still not revealed what exactly Davis's job involved, but argues that, even though he was technically a contractor, he falls under the category of "administrative and technical staff." After some early resistance, Pakistani legal scholars appear to be coming around to that view as well, though the high court still needs to rule. Sen. John Kerry has traveled to Pakistan to meet with officials about the case, and millions of dollars in U.S. aid may hang in the balance for Islamabad.

(Update: It was reported on Feb. 21 that Davis had been working for the U.S. Central Intelligence Agency while in Pakistan. The State Department maintains that since he was notified as a member of the embassy's "administrative and technical staff" when he entered Pakistan, he still enjoys immunity.)  

Lethal Weapon 2 notwithstanding, host countries don't have much recourse against visiting diplomats who violate their laws. Just ask New York City, which has tried in vain for years to recoup millions of dollars in unpaid parking tickets from U.N. diplomats.

Even for serious crimes, the most a country can generally do is expel the offender. That's what Britain did in late January with Anil Verma -- a high ranking Indian diplomat in London who is accused of brutally assaulting his wife on multiple occasions. Verma is still an employee of the Indian Administrative Service, and it's not yet clear whether charges will be filed against him in India.

A diplomat's home country can waive his diplomatic immunity in particularly egregious cases. In 1997, Gueorgui Makharadze, formerly the second-highest-ranking diplomat at the Georgian Embassy in Washington, had his diplomatic immunity waived after he killed a Maryland teenager in a drunk driving accident. Makharadze had gotten out of a drunk-driving charge the previous year by claiming diplomatic immunity. He was sentenced to 21 years in prison and was later transferred to Georgia to finish his sentence.

Violations of the Vienna Convention are extremely rare -- the 1979 Iranian hostage crisis was one exception -- because countries are usually reluctant to put their own diplomats at risk. Despite the crowds calling for his blood, Davis likely has a good chance of getting out of this one without spending much more time in the Lahore slammer.

*Correction: The original version of this piece inaccurately described Davis as an employee of the U.S. consulate in Lahore. 

Thanks to Peter Spiro, professor of law at Temple University and blogger at Opinio Juris.

ASIF HASSAN/AFP/Getty Images

 SUBJECTS:
 

Joshua E. Keating is an associate editor at Foreign Policy.

DLAKERGUY

11:48 PM ET

February 15, 2011

We will take care of it.

This sounds like something the United States will most likely prosecute if he was not truly defending himself from an attack. If he is guilty, it is still more humane to prosecute him here in the U.S. to protect him from malpractices in a foreign nation like Pakistan where he, as an American, is likely hated and would also face severe penalties. Diplomatic immunity in this case is a good tool and I am glad it exists for these reasons.

 

BERGAMO

3:51 AM ET

February 17, 2011

are you so naive

do you really believe the USA justice will prosecute this man?
American soldiers have, more or less, a right to kill when abroad. The pilot whose imprudence caused the death of several Italian skiers in Northern Italy several years ago, walked away free. He was discharged. Period.
Only when the murder is so egregious that not even the military mafia can do anything about it, are soldiers punished for their wrongdoing -- but even then less harshly than a civilian court. The soldier who raped and killed that young Iraqi would be sent to the gallows in a civilian court. He has been condemned, if I am right, to life in prison.

 

PKOULIEV

2:03 AM ET

February 16, 2011

Immunity or Improvement of current human rights around the world

There are certain things we as human beings have to set straight without getting emotionally involved when injustices taken place in certain places and societies. We have two cases: one in Italy involving non-diplomat American student who were charged for manslaughter. Since it happened in Italy, and she is non-diplomat, justice was carried out by following all criminal procedures accepted as 'standards' by western countries. Her case is still being disputed by American lawyers, and it is possible in a democratic and open society. As I mentioned, it happened in Italy not Pakistan or any third world country. Pakistan is our 'ally' to fight terrorism, while our country has never been involved in developing in any civil institutions except providing humanitarian and military aid. While we preach 1961 Vienna Convention on Diplomatic Relations, we are trying not to get involved in putting pressure in countries like Pakistan to implement 1948 the Universal Declaration of Human Rights. I think latter declaration precedes 1961 Vienna Convention and gives more protection to any human being. The UN declaration is not anymore just part of interior affairs of any country; it is part of us as human civilization.

 

YYYUUU

2:18 AM ET

February 16, 2011

Consular Immunity

Even "If" Raymond was a member of the Lahore consulate his status would be governed by the 1963 Vienna convention re. consular immunity not the 1961 Vienna convention re. diplomatic (i.e. employees of the Embassy). Any member of the consulate can be prosecuted for crimes like this, even a consular general.

http://en.wikipedia.org/wiki/Consular_immunity

It appears the US government is trying to scramble after the fact to find him diplomatic immunity as a technical advisor to the Embassy in Islamabad despite no evidence yet that he registered as a diplomat or was received as such, there isn't even any evidence he was ever in Islamabad. Likewise, US officials have previously claimed he provided support to the consulate rather than the embassy. Don't we believe in the rule of the law? - the Pakistani courts can ascertain his status after the facts have been established.

 

NICOLAS19

3:22 AM ET

February 16, 2011

exactly

You beat me to it. I wonder how a law professor could give his name to such garbage. If there was any proof that Davis was a diplomat - which is unlikely at least for a contractor - it would have been presented long ago.
Yet even if he was diplomatic service staff, his degree of immunity would be much lower then that of actual diplomats, as his immunity wouldn't extend to non-official acts. Carrying and using an unlicensed firearm hardly qualifies as official act...

 

XTIANGODLOKI

11:22 AM ET

February 16, 2011

The slate article explains it much better than this one

http://www.slate.com/id/2250254/

"How far does diplomatic immunity go?

It depends on your rank. Top diplomatic officers have full immunity, as do their deputies and families. That means ambassadors can commit just about any crime—from jaywalking to murder—and still be immune from prosecution. They can't be arrested or forced to testify in court. (This category would probably include al-Madadi, who serves as third secretary in the Qatari embassy.) Lower-ranking officials have a weaker type of protection called "functional immunity." These officials are covered only for crimes committed within the scope of their regular work responsibilities. If, for example, a consular official got into a fistfight during a meeting with a U.S. official, he would be protected from prosecution. If the fight occurred at a bar over the weekend, he would not. Service staff for an embassy or consulate, from the kitchen employees to the valets, have no immunity whatsoever. And, contrary to popular belief, any diplomat can be issued a traffic citation. They just can't be forced to pay it. "

 

ZAPATA

3:15 AM ET

February 16, 2011

The rule of law

According to Peter Spiro, the US government admits Raymond Davis is "technically" a contractor, but he's really a member of the diplomatic staff.

That's like saying that "technically" Barack Obama was born in Africa but his heart is really in Hawaii.

Or "technically" Lindsay Lohan took the necklace, but she didn't actually steal it.

Or "technically" the Blackwater employees who shot up Iraq worked for a contractor, but really they were embassy staff.

If Davis was a contractor he was self-employed, and if he was self-employed he wasn't diplomatic staff.

If the US govt admits Davis is a contractor the game is up. He goes free not by the rule of law, not by any Geneva convention, but by power politics.

That's why Peter Spiro hastens to add that "millions of dollars in U.S. aid may hang in the balance for Islamabad."

You might expect the government to respect the rule of law. Those days are evidently gone. You might expect after Egypt that it would avoid heavy-handed power politics. We begin to suspect the US government may be not only unprincipled but dumb.

Pakistanis in the street know they'll never see a penny of those millions of dollars. But as Pakistani newspapers make crystal clear, they're keenly aware when the US government tries end run around the rule of law.

 

AR

3:32 AM ET

February 16, 2011

Bring our guy home from that

Bring our guy home from that God aweful place known as pakistan.

 

NICOLAS19

9:47 AM ET

February 16, 2011

he knew where he was going

He also knew the penalty for murder. So why should the government intervene?

 

SPEAK YOUR MIND

4:39 AM ET

February 16, 2011

What if a third world diplomat assasinates the US President?

Lets hypothetically say a foreign diplomat esp of a third world country, were to shoot the US president, then there is no way in hell that we will be follow the Vienna Convention, and let him go.
Justice is the interest of the strong - Thrasymachus 2500 years ago
Sorry Pakistan thats how the world is!

 

FAZLY

5:06 AM ET

February 16, 2011

nonsense

what universal protocol is adhered to when the drones kill hundreds in Pakistan. So shut the F*** up and deal with the reality. One more back to stone age statement will be delivered and the cowards in Pak will bend.

 

HAMID

10:44 AM ET

February 16, 2011

Legalese Aside

There are two cases brought up here. The case of the Indian diplomat in UK who allegedly assaulted his wife and the case of the Georgian diplomat whose immunity was revoked by Georgia. The Pakistani case is fundamentally different from the UK/Indian one because it involves a US diplomat killing citizens of the host country and not a domestic case of violence. Georgia, on the other hand did not want to lose the goodwill or aid of a superpower and therefore revoked the diplomatic protection of their own diplomat. The real question is: What would the US administration and media do if a Pakistani diplomat were to end up killing couple of Americans by accident or intention on the streets of Washington ? A quick reflection reveals that this is really a question of relative powers of nations and not legalese as the author of this article tries to portray. Disclosure: I am originally from India.

 

XTIANGODLOKI

11:15 AM ET

February 16, 2011

Yeap.

"A quick reflection reveals that this is really a question of relative powers of nations and not legalese as the author of this article tries to portray. "

Hit the nail right on the head.. When it comes to international relations the legal aspects provide the cover and justification for political acts. It's the later which determines the outcome first.

 

XTIANGODLOKI

11:18 AM ET

February 16, 2011

Just promise to prosecute Davis back at home

This is what Kerry is doing now and will likely to work. Money worked very well to keep the Egyptian military on our side so I don't see why it wouldn't work here. A prisoner swap could also work.

 

COUNTCHOCULA1011

12:19 PM ET

February 16, 2011

A prisoner swap? lol

This is a country trying to prosecute a man for murder, not some terrorist organization who kidnapped an NGO official. And the guy is obviously not a diplomat. I say, hang em high.

 

HAMMAD MELA

12:03 PM ET

February 16, 2011

Immunity for cold blooded murder

After putting a spin on the actual incident author mentioned a few non-related cases of parking tickets and domestic violence by diplomats. Here are some facts.
Altogether Raymond shot about fourteen bullets, some from inside the speeding vehicle with close windows and others after getting out on the boys who were running for their lives. Not even one missed the target. Speaks enough for his “diplomacy skills”. Then another “diplomat” following him hits a nearby person who also dies at the spot. Tragedy does not end here. Widow of one of the person shot by Raymond commits suicide stating, … “She has no hope of receiving justice”
American consulate has no answer for who Raymond is? What are his duties? Why was he roaming in non-official vehicle? Why was he having photographs of various sensitive and secure places? Why was he carrying GPS and weapons without license? They have even refused to disclose the identity of the hit and run driver.
As for the immunity, Foreign Minister of Pakistan has clearly stated Raymond is not a diplomat and hence has no immunity. Unfortunately for him he was sacked for speaking the truth.

 

SQUEEDLE

1:21 PM ET

February 16, 2011

Please post your source

I can't find any article online supporting everything you claim. The closest I found in several pages of search results, ignoring any obviously American sources, was here:

http://pakistaniat.com/2011/01/30/raymond-davis/

Please post the source of your information so the rest of us can read it and judge for ourselves.

I find it at best suspicious that a fleeing, alleged "robber" was shot in the back and that the "rescue" car ran over and killed a third person.

I've always had problems with this diplomatic immunity thing, but I understand why it's there - otherwise you will see a lot more people being set up and charged for crimes they didn't commit, for purely political reasons (like the 3 hikers in Iran - does anyone truly believe they were anything but idiotic?). Countries need to show some responsibility in choosing their "diplomats" and take care to bring abusers of their immunity to justice. The way this situation looks I find it appalling that my government is sticking up for this guy.

 

ERGO THE QUALMED

1:29 PM ET

February 16, 2011

Source?

Yes, where are you getting the "facts" you mention? Your information seems a bit suspect--14 rounds, from inside a vehicle, out of a pistol, at actively escaping targets? With no misses. Seems quite a stretch. I was also under the impression that his "sensitive photos" were of simple street life; more of a tourist-type deal.

Until all of the information has been gathered, I see no point to wildly calling for the man to be hanged. It is quite possible this was a case of justifiable homicide--though from what I gather that is not "legal" in Pakistan--and yet here we are crucifying him. A GPS is not a suspicious item, especially in an unfamiliar/foreign country.

However, if he was a "murderer" then he does need to be punished under the law. Though given his status as an American, I doubt the impartiality of lawyers and the justice system in Pakistan.

 

ROLLEN

4:15 PM ET

February 16, 2011

More to the Story Than We Know?

I certainly can't confirm the details in Hammads post and some certainly seem to be exaggerations and innuendo meant to up the sinister quotient. There does however seem to be some real indications than this situation is more than it appears on the surface. A lot of this is detailed in this Telegraph article: http://www.telegraph.co.uk/news/worldnews/asia/afghanistan/8316286/Detained-US-official-in-telephone-contact-with-Islamic-terror-group.html

The simple fact that the President is weighing in, that we are sending John Kerry all the way to Pakistan, and that we are willing to risk further damaging our creditability with the populace in Pakistan all seem to point to the fact that this guy may be more than just the typical contractor. If even some of the stuff in the Telegraph article are true - that the guys he killed might be ISI, that Davis was in contact with Lashkar-e-Jhangvi, that he was carrying a gun and possibly GPS equipment and other potentially suspicious stuff - it would certainly point to possibility of Davis being engaged in some kind of intelligence/espionage work.

If, in fact, Davis is a significant member of the intelligence community (especially if he was spying on the ISI itself) his capture could potentially mean he could be subject to torture and possibly be forced to give up very sensitive information on US anti-terrorist efforts to people in the Pakistani intelligence service that may be tied to the tribal areas.

Of course this is all guess work on my part, but it would explain some of the more puzzling aspects of this scenario (though why it is all being conducted so publicly is still a mystery to me). I am, in general, extremely skeptical of conspiracy theories proffered to explain things when more simple and plausible explanations exist, but in this case the pieces do seem to fit and I can't help but read "contractor" as "CIA".

 

BOBCAT19

2:34 PM ET

February 16, 2011

Vienna Convention

Vienna Convention on Consular Relations of 1963, Section II, Article 41 of the treaty, in its first paragraph regarding the “Personal inviolability of consular officers,” states:

“Consular officers shall not be liable to arrest or detention pending trial, except in the case of a grave crime and pursuant to a decision by the competent judicial authority.”

This certainly falls under the grave crimes category. The Lahore police have determined that it was not an act of self defence but of murder and he has been indicted in court for that. They have also recommended filing espionage charges against him but the federal govt does not want to do that at least as yet. The police recovered pictures of sensitive military sites and madrassas and other buildings in and around Lahore on Davis' digital camera. Also found in his possesion were a Glock handgun, a flashlight that attaches to a headband, a pocket telescope, a large number of cellphones, including at least one satellite phone, a collection of batteries, bucketloads of bullets, both for the Glock and a Beretta allegedly used by Davis to kill the two motorcyclists in his pinpoint shots through his front windshield, and a load of M-16 shells. Police report that the bullets were high-powered killer projectiles not allowed in many countries. There were military-grade knives, wires, and a surprising array of high-capacity magazines for the handguns

And what about the suv with Davis' colleagues that tried to rescue him driving recklessly the wrong way and then killed an innocent motorcyclist while reversing at high speed. And it also seriously injured 2 women. I doubt that the driver of that vehicle has immunity.

Is it not the law in every country in the world that one has to wait for the police after being involved in a serious traffic accident in which someone gets killed or when one kills someone in 'self-defence'. His attempt to run and his request to his colleagues to extricate him speaks volumes as he was under no threat then. The crowd of people did not hurt him at all but only prevented him from running away and tried to prevent the suv trying to extricate him from driving away after it ran over and killed an innocent motorcyclist. As per eye eye witnesses, the four occupants of that suv had trained their guns on the people who had surrounded the suv and threatened to shoot if they did not get out of the way.

Pretty high powered pressure is being brought to bear by Obama and Kerry to let Davis go. Why don't they just tell us what exactly what Davis was doing there that day, and what exactly was his job in Pakistan? No one from the US embassy in Pakistan has as yet answered these questions.

 

STEFAN STACKHOUSE

4:29 PM ET

February 16, 2011

Diplomatic credentials?

Ambassadors, at least, are required to present their diplomatic credentials upon entering the host country. Maybe there is a need to extend this protocol for all diplomatic personnel. If the authorities in the host country know up front who does have accredited diplomatic immunity, then these sort of disputes simply would not occur.

It surprises me greatly that this is apparently not already standard practice worldwide.

 

DR.KISSINGER@YAHOO.COM

10:07 PM ET

February 16, 2011

diplomatic immunity

Davis is a consular diplomatic official and a christian mass killer. The law for US is different than the international law for Pakistan. I wouldn't appeal much to International law if I were you. International law didn't help Iraq much did it?
shalom dr.k.

 

KHALID RAHIM

1:46 AM ET

February 17, 2011

Might is Right !

The American and Israeli Might are mightier than the AlMighty Himself?
Lest we forget the New World Order whose seeds were layed in the mid
70s finally bloomed in 2000 AD under the GWB administration. To day
international laws will be interpreted on basis of war against terrorism.
Only the above two countries and their bosom allies will not be charged
for any act no matter how violent for terrorism. All other nations fall in the catagory of terrorism if such incident or accident is committed on their soil or in the allied soil. The truth will remain hidden about the real
intented visit of Raymond Davis to Mozang square in Lahore(Pakistan).
Did he lose his cool being shadowed and decided to shoot first and ask
later, having got the assurance of Diplomatic Immunity he now finds too
heavy like a millstone around his neck. Incidently America was not the cradle of civilization nor the hub of non-violent culture that the american
public seem to claim.

 

ABLEARCHER

5:15 PM ET

February 18, 2011

realism alert!

What is the problem here? This is simply a glimpse into the methodology that maintains the status quo. Sure you may not like it but it sounds like many people want to wait for spontaneous world peace to break out and stop the need for such things. Till then accept it and be grateful that there are those who do what you can't or won't.

 

SPEAK YOUR MIND

4:29 AM ET

March 13, 2011

I cannot believe the justification under International law

The author appears pretty stupid, to claim that Davis in legally entitled to immunity. FP, somebody needs to vet such crap; I am surprised it it has published online

 

JULIA MIRON

1:27 PM ET

March 18, 2011

Can You Get Away With Any Crime if You Have Diplomatic Immunity?

Pretty much, unless your own government gives you up. Lets hypothetically say a foreign diplomat esp of a third world country, were to shoot the US president, then there is no way in hell that we will be follow the Vienna Convention, and let him go. Justice is the interest of the strong - Thrasymachus 2500 years ago Sorry Pakistan thats how the world is!. "(Update: It was reported on Feb. 21 that Davis had been working for the U. S. Central Intelligence Agency while in Pakistan golf bag. The State Department maintains that since he was notified as a member of the embassy's "administrative and technical staff" when he entered Pakistan, he still enjoys immunity. )" Widow of one of the person shot by Raymond commits suicide stating, She has no hope of receiving justice American consulate has no answer for who Raymond is? What are his duties? Why was he roaming in non-official vehicle? Why was he having photographs of various sensitive and secure places? Why was he carrying GPS and weapons without license? They have even refused to disclose the identity of the hit and run driver. As for the immunity, Foreign Minister of Pakistan has clearly stated Raymond is not a diplomat and hence has no immunity. Unfortunately for him he was sacked for speaking the truth.