Bilateral
investment treaties (BITs) are among the better kept secrets of the
internal economic regime in the recent past. Increasingly, other international
agreements signed by governments are subject to much discussion and
public debate both at the negotiation stage and during implementation.
In India, for example, we are now much more concerned about the positions
taken by government negotiators at the WTO, and there is active debate
about the various clauses in the agreements.
Yet
BITs, which have been expanding dramatically both in number and in coverage
and protection provided to investors, remain largely outside the domain
of public discussion. The Indian government has signed more than fifty
such treaties, yet these are hardly known, and the precise contents
of such treaties are not disseminated or discussed at all, even though
they can have all sorts of implications and also carry a number of dangers
which are only now becoming obvious in several countries.
BITs are agreements between two countries for the reciprocal encouragement,
promotion and protection of investments in each other's territories
by companies based in either country. In addition to providing for basic
rights of admission and establishment, such treaties typically cover
issues which are various forms of protection to foreign investors, such
as compensation in the event of expropriation, war and civil unrest
or other damage to the investment and guarantees of free transfers of
funds and the recuperation of capital gains.
In addition, there are usually specified dispute settlement mechanisms,
both for state vs. state and investor vs. state. In fact, the experience
so far is mainly with investor-state disputes, since multinational companies
have been more than willing to use the provisions of such treaties to
extract concessions or compensation for public actions.
Thus, the main provisions of such treaties tend to be broadly similar
to those in the abandoned OECD Multilateral Agreement on Investment
(MAI), and sometimes they are even more stringent. This is of special
significance given the previous failure to impose investment rules in
the WTO, and the persistence of hopes for the renewal of this issue.
There is no doubt that once a substantial number of countries have signed
or accepted even more sweeping provisions with respect to investment
in bilateral or regional deals, they will find it much harder to resist
MAI-type agreements at the WTO, and may even prefer a situation in which
they are all in the same adverse situation together, rather than being
individually ''picked out''.
Earlier, NAFTA was widely believed to be the most stringent application
of such investment rules. Chapter 11, NAFTA's powerful investment chapter,
provides foreign corporations with rights to sue governments for enacting
public policies or laws which they claim to affect their profitability.
There is no provision for exception even for such goals as safeguarding
the environment, protecting the health and safety of citizens, supporting
small businesses or maintaining and increasing employment.
Under the investor rights guaranteed in the agreement, investors are
allowed to demand compensation for ''indirect expropriation''. This has
been interpreted to include any government act, including those directed
at public health and the environment, which can diminish the value of
a foreign investment. These cases are adjudicated by special tribunals,
bypassing the legal system of all three member countries. Already, suits
with claims amounting to more than $13 billion have been filed by large
companies. In a typical case in 2000, the Mexican government was ordered
to pay nearly $17 million to a California firm that was denied a permit
from a Mexican municipality to operate a hazardous waste treatment facility
in an environmentally sensitive location.
However, while the regional agreements such as NAFTA have received some
amount of adverse publicity, the numerous BITs that have been signed
have been subject to very little public scrutiny, even though they can
go much further. The first BIT was signed between Germany and Pakistan
in 1959, but they did not really become important until the 1990s. Over
400 wide-ranging bilateral treaties were signed before 1995, but thereafter
there has been an upsurge of such treaties.
The number of BITs increased by five times in the 1990s from 385 in
1989 to 1,857 at the end of 1999. By 2004 there were estimated to be
2,365 BITs in operation. (UNCTAD) They cover 176 countries, mostly in
the developing world and Eastern and Central Europe, and cover around
one-fourth of the stock of FDI in developing countries.
The
purpose of BITs is usually to provide amore stable and secure environment
for foreign investors, and thereby to ensure ''investor confidence''.
The security and guarantees provided by a BIT are seen as essential
to encourage the inflow of supposedly much-needed foreign investment
to developing countries. Most developing country governments are constantly
told that foreign investors need such assurances before they can be
persuaded to enter into potentially unknown or risky markets.
However, there is little evidence that signing a BIT actually does
contribute to more FDI in developing countries. Even the World Bank
admits that ''empirical studies have not found a strong link between
the conclusion of a BIT and subsequent investment inflows''. (World
Development Report 2005) In fact, countries without too many BITs
(such as China) have been far more successful in attracting FDI from
home countries that have signed BITs with other developing countries.
Table
1: Number of Bilateral Investment Treaties in 2002 |
Region |
Number
of BITs
|
Countries |
Average
BITs per country |
|
|
|
|
Developed
countries |
1170
|
26 |
45 |
Developing
countries |
1745
|
150 |
12 |
Africa
|
533
|
53 |
10 |
Latin
America and the Caribbean |
413
|
40 |
10 |
Asia
and the Pacific |
1003
|
57 |
18 |
Central
and Eastern Europe |
716
|
19 |
38 |
Source: UNCTAD
Instead, BITs have far-reaching and typically negative implications
for host country governments and citizens, because of the sweeping
protections afforded to investors at the cost of domestic socio-economic
rights and environmental standards. A common concern about investment
agreements is that they subject countries to the risk of litigation
by corporations from or based in another country which is a signatory
to the same agreement. This might be based on a company's objections
to the host government's environmental, health, social or economic
policies, if these are seen to interfere with the company's ''right''
to profit.
These adverse effects are already becoming evident in the increasing
litigation which is facing developing country governments who seek
to safeguard citizens' rights. For example, the multinational infrastructure
company Bechtel (which also deals in water supply services) successfully
currently sued the Bolivian government under a 1992 Holland-Bolivia
BIT for loss of profits after the government's reversal of a disastrous
water privatisation in Cochabamba municipality following a popular
uprising in the area.
A number of other developing or formerly socialist countries are facing
such disputes brought by multinational companies, ranging from Pakistan
to the Czech Republic. The most striking recent examples of the adverse
effects of BITs for the host country come from post-crisis Argentina.
The World Investment Report 2005 describes how the privatisation of
public utilities in the early 1990s, combined with the 54 BITs that
the Argentine government signed over the 1990s, had unforeseen adverse
consequences after the sharp devaluation of the peso during the 2002
financial crisis. The trebling of the value of the dollar in local
currency forced the government to transform all dollar-denominated
contracts into peso-denominated contracts, including those signed
with the utility forms that were now owned and controlled by multinational
companies. In addition, the periodic adjustment of tariffs based on
foreign inflation indices were also eliminated.
This has led to a spate of disputes instigated by foreign investors
- as many as 37 such cases have been filed with World Bank's private
arbitration body for investment disputes, the International Centre
for Settlement of Investment Disputes (ICSID) since 2002. The first
award of the ICSID tribunal, on 12 May 2005, ordered Argentina to
pay $133.5 million plus interest in compensation to the US-based multinational
CMS on grounds of violation of the BIT between Argentina and the US.
ICSID rejected the Argentine government's plea that these were emergency
measures based on the necessity created by the dire financial, economic
and social crisis in the country.
It should be noted that the resolution of such conflicts is not subject
to the standard juridical systems of the member countries - rather
it is governed by tribunals or similar bodies specified in the treaty.
This amounts to the privatisation of commercial justice, with no democratic
accountability of the decision makers in this regard. In many bilateral
agreements, the provisions state that where a dispute cannot be settled
amicably and procedures for settlement have not been agreed within
a specified period, the dispute can be referred to another body.
The two most important such bodies are the World Bank's private arbitration
body for investment disputes, the International Centre for Settlement
of Investment Disputes (ICSID) or the UN Commission on International
Trade Law (UNCITRAL). Under NAFTA, complainants (usually the dissatisfied
investors) are allowed to choose between these two bodies.
Domestic courts and national legal systems are completely marginalised
by investors' recourse to these international arbitration panels.
ICSID and UNCITRAL only allow for the investor and government parties
to the dispute to have legal standing. The public has no right to
listen to proceedings or to view evidence and submissions. Both bodies
require only minimal disclosure of the names of the parties and a
brief indication of the subject matter, which prevents public scrutiny
or popular opposition. These bodies are thus given the responsibility
to adjudicate virtually all investment disputes without democratic
structures or transparency, despite the fact that they are not serving
private goals but an international judicial function governed by treaty
and international law.
These two arbitration bodies have developed rules for both conciliation
and arbitration that are based completely on legal systems of the
north, especially the US, and ignore much of the world's wealth of
experience in settling disputes, such as Asian rules of arbitration.
The record of these bodies thus far has been very investor-friendly,
in awarding substantial damages and compensation to multinational
corporations for ''transgressions'' of developing country governments.
Under these conditions, there is clearly little incentive or need
for international investors to settle disputes amicably, given the
highly favourable outcomes for corporations which have initiated proceedings
under such agreements. So BITs have become potent weapons of multinational
companies against not only governments but also the societies of countries
that have signed these treaties.
Clearly, in this context, it is critical for civil society across
the developing world to demand that the signing of BITs be subject
to public scrutiny, and that the proceedings disputes arising from
BITs be open and publicly accessible for the common good.
|