1.4 Sources and methodology
The forthcoming sections explain which legal sources are applied to address the research questions of this thesis, and how they are applied. The purpose of this thesis is first and foremost to provide an understanding of the law as it exists [lex lata] and thus applies the dogmatic method of legal research.
The laws of space constitute a part of international law.(1) J. Crawford, Browlie’s Principles of Public International Law (Oxford: Oxford University Press, 2019), 331, Oxford Scholarly Authorities on International Law. The legal sources applied in addressing the research questions of this thesis, are those reflected in the Statutes of the International Court of Justice (ICJ), Article 38.(2) Statute of the International Court of Justice, 33 UNTS 933, adopted June 26th 1945, entered into force October 24th 1945. Although this article is formally intended for the judges of the ICJ, it is broadly recognized as providing an authoritative statement of legal sources applicable in international law.(3) Cassandra Steer, “Sources and law-making processes relating to space activities” In Routledge Handbook of Space Law, ed. Ram Jakhu, Paul Stephen Dempsey (London: Routledge, 2016), 5. International conventions, general principles of law, and customary law are primary means for determining the rules of law.(4) Article 38 (n. 82), litras a, b, and c. Judicial decisions and the teachings of the most highly qualified publicists are followingly subsidiary means.(5) Ibid., litra d.
Treaties are often referred to as the most importance source of obligation in international law.(6) Crawford (2019), 28. This is certainly true for space activities.(7) Lyall and Larsen (2018), 38; Steer (2016), 6. There are in total five UN space treaties that constitute the backbone of space law: the Outer Space Treaty of 1967(8) (n. 21), supra., the Rescue and Return Agreement of 1968(9) Agreement on the Rescue of Astronauts, the Return of Astronauts and the Return of Objects Launched into Outer Space, 672 UNTS 119, adopted 1967, entered into force December 1968., the Liability Convention of 1972(10) Convention on International Liability for Damage Caused by Space Objects, 961 UNTS 187, adopted in the General Assembly in 1971, entered into force September 1972., the Registration Convention of 1975(11) Convention on Registration of Objects Launched into Outer Space, 1023 UNTS 15, adopted 1974, entered into force September 15 1976., and the Moon Agreement of 1979.(12) Agreement Governing the Activities of States on the Moon and Other Celestial Bodies, 1363 UNTS 3, adopted December 5th 1979, entered into force July 111984. The most important agreement in this regard is the Outer Space Treaty of 1967 [OST].(13) Tronchetti (2015), 778; Hobe (2019), 59. As of January 1, 2024, the OST enjoys widespread support with 114 ratifications and 22 signatories, including all major spacefaring nations.(14) Status of International Agreements relating to activities in outer space as at 1 January 2024, UN document A/AC.105/C.2/2024/CRP.3, available online: https://www.unoosa.org/res/oosadoc/data/documents/2024/aac_105c_22024crp/aac_105c_22024crp_3_0_html/AC105_C2_2024_CRP03E.pdf. Last accessed May 13th 2024. It is the main legal source applied in this thesis, as it codifies the fundamental principles of non-appropriation, free use of outer space, and State responsibility – principles central to answering the research questions of this thesis.(15) Section 1.3.1, supra.
Another relevant treaty is the Moon Agreement of 1979 [MA].(16) (n. 24), supra. It is the only space treaty that provides explicit provisions on natural resources in outer space. It also reiterates the non-appropriation principle of the OST Article II.(17) Ibid. Article 11 (2). It is therefore of interest to examine. However, the MA lacks support from the majority of the States Parties to the OST, including all the major spacefaring nations.(18) See Status of Treaties (n. 23) Its provisions initially only apply to its 17 States Parties and its obligations are therefore limited to these.(19) Ram Jakhu, “The International Legal Framework” in Space Mining and its Regulation (Cham: Springer Nature, 2017), 114-115.
The third space treaty of relevance for this thesis is the Liability Convention of 1972.(20) (n. 90), supra. It provides a specialized regulation of liability for damage caused by a space object in outer space. It enjoys close to the same support as the OST.(21) With 100 ratifications, including all spacefaring countries, and 18 signatures (n. 23). It is therefore central for analysis when assessing the State responsibility for damages caused in a future mining operation in outer space.
Certain non-binding instruments are of relevance when addressing the legal aspects of space resources. They are not traditional sources of international law as per the ICJ-Statutes, but they can transition into customary law when requisite state practice and opinio juris exist.(22) Masson-Zwaan and Sundahl (2023), l, 388. Resolutions adopted by the UN General Assembly such as the 1996 “Benefits Declaration” may be relevant, as it affirms that outer space should be used on an equitable basis.(23) Declaration on International Cooperation in the Exploration and Use of Outer Space for the Benefit and in the Interest of All States, Taking into Particular Account the Needs of Developing Countries. UNGA Res. 51/122 of December 13, 1996. Available online: https://www.unoosa.org/oosa/en/ourwork/spacelaw/principles/space-benefits-declaration.html. Last accessed May 30, 2024. The declaration essentially echoes Article I of the OST as it states that spacefaring States should give particular attention to “[t]he benefit for and the interest of developing countries and countries with incipient space programmes stemming from such international cooperation conducted with countries with more advanced space capabilities.”(24) See the Outer Space Treaty (n. 21) Article I.
Other instruments of importance when addressing the rules of responsibility and liability in space resource exploitation are the ones provided by the International Law Commission [ILC], codifying the rules of State responsibility and liability for damage in general international law. The most important is the Draft Articles on State Responsibility adopted by the UNGA in 2001.(25) Responsibility of States for Internationally Wrongful Acts, adopted by A/RES/56/83, 12 December 2001. Provided in Report of the ILC on the Work of its Fifty-third Session, Official Records of the UNGA, 56th session, Supp. No. 10. A/56/10 (2001). There are two reasons for their relevance in this thesis. Firstly, they are considered to increasingly reflect customary law.(26) Steer (2016), 14. Secondly, their general applicability to all branches of international law also include space activities.(27) Ibid. They therefore contribute as complimentary sources to the rules of the OST and the LC.(28) Ibid. They express that the wrongful act of a State entails international responsibility of that State.(29) (n. 105) Article I. An act is wrongful when conduct is attributable to the State and constitutes a breach of an international obligation of the State.(30) Ibid. Article 2 (a) and (b). Because the OST Article VI obligates States to assure conformity with the provisions of the OST and international law including non-governmental entities, and to authorize and continually supervise these entities, they are relevant in clarifying the legal framework of State responsibility in outer space. Moreover, the 2001 Draft principles on the allocation of loss in the case of transboundary harm arising out of hazardous activities may provide useful when examining the concept of due diligence in relation to what ‘fault’ as a prerequisite for liability in the LC entails.(31) Article III, (n.457), infra.
There are no judicial decisions directly relevant for the topic of this thesis, given that space activities are relatively novel, and space resource activities embryonic. Nonetheless, this thesis references to judicial decisions, primarily judgments of the ICJ, as they can help determine rules of international law.(32) Either as supplementary means or as elements of customary law, see Article 38 (n. 83). They can also provide authoritative statements on treaty interpretation.(33) See section 1.4.1.1 on ICJ-judgment as authoritative statements in treaty interpretation rules.
The use of scholarly writings is a central element of this thesis. Because there is a lack of legal sources providing evidence of the law like judicial decisions, this makes the insights and opinions of eminent legal scholars in the field essential for clarifying and resolving legal questions. Scholarly contributions are considered subsidiary means of determining legal rules.(34) Article 38 (n. 83), d. Given this context, it's important to approach the views found in literature with caution. Furthermore, although the Statutes stipulate the requirement of ‘the most highly qualified publicist of the various nations’, there is no clear line between a ‘highly qualified’ publicist and merely a “qualified” one. There exists a significant amount of literature in the field of space law, which in some cases is not of a satisfactory standard, and/or that provide unthorough analysis and reasoning.(35) Lyall and Larsen (2018), 28. This makes the selection and assessment of literature challenging, especially in the case where the qualification of the publicist is not completely obvious. However, elements such as the formative influence of a writer or authority in the field provide weight.(36) Crawford, (2019), 40. This thesis has been written with such considerations in mind and has mainly applied literature that adheres to the qualification of Article 38 (d).
1.4.1 A closer look at treaty interpretation
As emphasized earlier, treaties are the primary source applied in this thesis. The process of determining the meaning and obligations of these agreements between States has is an essential part of international law methodology. The work of the International Law Commission has provided a codification of the international law of treaties through the Vienna Convention on the Law of Treaties [VCLT].(37) Vienna Convention on the Law of Treaties, adopted May 23rd 1969, entered into force on January 27th 1980, United Nations Treaty Series, vol. 1155. It serves as a fundamental tool for treaty interpretation, ensuring that the interpretation process is grounded in internationally recognized standards, and establishes the true meaning of the treaty.(38) Oliver Dörr, “Interpretation of Treaties: General rule of interpretation”. In Vienna Convention on the Law of Treaties: A Commentary (Berlin, Heidelberg: Springer Berlin / Heidelberg, 2018), 560. Articles 31 and 32 establish the means for interpretation, and are the primary tools utilized in this thesis.
1.4.1.1 Articles 31 and 32 as customary law
The VCLT is a treaty, and therefore not a direct source of law, but a source of obligations.(39) Crawford (2019), 29. This initially means that only Parties to it are bound by its provisions. Furthermore, the VCLT states in Article 4 that it does not apply retroactively to treaties concluded before its entry into force with respect to its States Parties, meaning the rules of the VCLT govern only treaties made after its entry into force 27 January 1980.(40) (n. 117). At first, this indicates that the VCLT does not apply to the Outer Space Treaty, as the latter entered into force in October 1967. However, Articles 31 and 32 are now widely recognized as reflecting pre-existing customary law.(41) Dörr (2018), 561. The ICJ has consistently applied these articles to treaties concluded before the VCLT's enactment, thereby affirming their status as reflective of customary law, notably in cases such as Libyan Arab Jamahirya v. Chad (1994)(42)Territorial Dispute (Libyun Aruh Jamuhiriyu/Chad), Judgment, 1. C. J. Reports 1994, p. 6. See paragraph 41, available online: https://www.icj-cij.org/sites/default/files/case-related/83/083-19940203-JUD-01-00-EN.pdf. Last accessed May 13, 2024., Qatar v. Bahrain (1995)(43)Maritime Delimitation and Territorial Questions between Qatar and Bahrain, Jurisdiction and Admissibility, Judgment, I.C. J. Reports 1995, p. 6. See paragraph 33, available online: https://www.icj-cij.org/sites/default/files/case-related/87/087-19950215-JUD-01-00-EN.pdf. Last accessed May 13th 2024., and Costa Rica v. Nicaragua (2009).(44)Dispute regarding Navigational and Related Rights (Costa Rica v. Nicaragua), Judgment, I.C.J. Reports 2009, p. 213. See paragraph 47, available online: https://www.icj-cij.org/sites/default/files/case-related/133/133-20090713-JUD-01-00-EN.pdf. Last accessed May 13, 2024. The Court's reliance on Articles 31 and 32 underscores the universal applicability of these interpretative principles. This is significant because it thus extends the applicability of these interpretative rules beyond the VCLT's Parties, making them relevant to all States irrespective of their ratification status of the VCLT.
1.4.1.2 The interpretation process
Article 31 provides the general rule of interpretation. It stipulates that
“A treaty shall be interpreted in good faith in accordance with the ordinary meaning to be given to the terms of the treaty in their context and in the light of its object and purpose.”(45) VCLT (n. 117) Article 31 (1).
“Ordinary meaning” often includes the use of dictionaries, and, additionally, considering elements such as the time the treaty came into force and the uniformity of terms across different [official] languages.(46) Dörr (2018), 581. “Context” involves taking the treaty as a whole into consideration.(47) VCLT Article 31 (2). This includes taking into account a treaty’s systematic structure, including sentence syntax and other provisions.(48) Dörr (2018), 581. It also includes taking similar terms provided in other parts of the treaty text, or different terms dealing with the same issue, into consideration.(49) Ibid. 583. An example from section 2.4 can here be drawn from the interpretation of the OST Article II in light of other provisions of the Treaty. When determining the meaning of appropriation by ‘use’ in Article II, the preceding Article I can provide a means of interpretation, as it states that outer space shall be free for exploration and ‘use’. This suggests that the lawful use of space cannot amount to appropriation.
This thesis interprets treaty text that is laconic and from an earlier age. It is therefore important to emphasize the time-aspect of the interpretation process. For example, the meaning of ‘national appropriation’ in Article II is discussed in later in section 2.3 Here, in determining the meaning of ‘national’, the intention of the States Parties to the OST at the time of its conclusion is taken into consideration. This is referred to as a “static approach” to establishing the meaning of a treaty provision and has often been applied by the ICJ.(50) Ibid. 572. Another example from section 2.4 is determining the meaning of ‘by any other means’ as means of appropriation. Here, the less common “dynamic approach” is reflected in the discussion. This approach refers to the interpretation of generic terms in a contemporary perspective when there are indications that the parties expected its content to change with time, thus reflecting their intention behind the wording.(51) Ibid. 573. In the later discussion of ‘any other means’, it appears that the term was included as a “safety net” with the intention of encompassing future developments – including the emergence of private entities in space.
Another notable means of interpretation that is addressed in thesis, is that of subsequent agreements and subsequent practice. They are characterized by being events following a certain amount of time after the conclusion of the treaty.(52) Ibid. 593. Moreover, they are essentially dynamic means of interpretation and thus not the same the “dynamic approach”.(53) Ibid. 574.
Accordingly, the interpretational process shall take into account, together with the context:
“(a) any subsequent agreement between the parties regarding the interpretation of the treaty or the application of its provisions;
(b) any subsequent practice in the application of the treaty which establishes the agreement of the parties regarding its interpretation[…]” (54) VCLT (n. 117) Article 31 (3).
“Parties” in this regard refers to the parties to the agreement whose terms is interpreted. Later in this thesis, the question is raised on whether the MA qualifies as a subsequent agreement in the interpretation of the OST.(55) Section 2.6.1, infra. The MA is not formally of a lower rank than the OST, as it was adopted by the same organ and by consensus. As is emphasized later, there are those who think it may affect the interpretation of the OST Article II.(56) Ibid. However, the low number of OST Parties to the MA, makes its interpretational value uncertain as there’s a ratification difference of nearly 100 States.(57) See Status of Treaties (n. 23), supra.
As for ‘subsequent practice’, it can be read from litra (b) that to have interpretational weight, the practice must be conducted by Parties in the application of the treaty. ‘Practice’ can in this sense be understood as several, ensuing acts. It includes a broad range of possible actions and inactions, and can range from official statements, to national legislation, to votes and submissions in the UN.(58) Dörr (2018), 598. Followingly, the practice must be conducted ‘in the application’ of the treaty. This, according to Dörr, means that
“[j]ust as for the development of international customary law, a subjective link is required under lit b: the parties whose practice is under consideration must regard their conduct to fall within the scope of application of the treaty concerned and in principle to be required under that treaty.” (59) Ibid.
Another element particularly interesting for this thesis, is that practice “establishing the agreement of the parties” does not require that all parties to have engaged, but on the contrary it is argued that it is possible that “only some parties participate in the practice”.(60) Ibid. 599. Nonetheless, a key requirement in this regard is that inactive parties have accepted the practice, which means they have permitted it actively through endorsement or inactively through absence of disagreement.(61) Ibid. 601-602.
Section 2.6 addresses some possible practices that may have relevance for interpreting the OST Article II. It is particularly intriguing given the evolving unilateral and multilateral interpretations of the non-appropriation principle outlined in Article II of the OST. As States Parties increasingly adopt these interpretations, they could significantly influence how the treaty's provisions are ultimately understood.(62) See more on this in section 2.6.2, infra.
Applying the interpretational method outlined above has been challenging. The interpretation process is intricate, as it takes into account both static and dynamic elements. It can therefore be difficult to assess the interpretational value of some events. Yet, some, such as the mounting support for the Artemis Accords, may contribute to a shift in how the non-appropriation principle of Article II is understood.
1.4.2 The relationship between general international law and space law
The laws of space constitute a part of international law. This is undisputed. To what extent general international law can be applied, is not.(63) Olivier Ribbelink, “Article III”. In Cologne Commentary on Space Law, Vol.1, ed. Hobe, Stephan, Schmidt-Tedd, Bernhard and Kai-Uwe Schrogl (Köln: Carl Heymanns Verlag, 2009), 67. Space law is often referred to as a specialized domain within international law, functioning under the principle of lex specialis.(64) Hobe (2019), 55-56. This concept signifies that, while space law operates in harmony with the broader framework of general international law, it assumes precedence in instances of conflict.(65) Ibid. According to Hobe, this entails that general international law may fill the empty pockets of space law when clear regulation is not provided by the latter. The same premise applies to any recourse to general international law.(66) Ibid.
The topic is repeatedly addressed in legal theory. Once concern is that there is a tendency to apply or put a heavy weight on terrestrial laws based on the stipulations of provisions such as the OST Article II.(67) Steven Freeland, “The limits of law: challenges to the global governance of space activities” in Journal & Proceedings of the Royal Society of New South Wales, 2020-06, Vol. 153 (1), 76-77. Some argue that space, by its nature, is a unique and different dominion that should not be lumped together with terrestrial domains despite apparent similarities. This perspective is summarized by the metaphor, "Square pegs do not seamlessly fit into round holes", highlighting the mismatch between conventional legal frameworks and the distinct characteristics of space.(68) Ibid.
These views indicate that using analogies from other legal fields, for example, should be approached with caution. Similarly, albeit to a lesser extent, they suggest that the application of general rules of international law also requires careful consideration.
1.4.3 International communal doctrines
When considering the impact of the rules of space on concepts such as the freedom to explore and use space, ownership rights and the potential wide or narrow prohibition thereof, it is important to recall that outer space is a realm beyond the jurisdiction of any State. This special legal domain is referred to differently, depending on whose glasses you look through. The most recurring view is that outer space constitutes a res communis omnium. The Latin phrase – stemming from Roman law – literally means “Thing of the [entire] community”.(69) Aaron Fellmeth and Maurice Horwitz, Guide to Latin in International Law (2. ed.). Oxford University Press, 2022. Available online: https://www.oxfordreference.com/display/10.1093/acref/9780197583104.001.0001/acref-9780197583104-e-1867?rskey=QwmsXc&result=6. Last accessed May 13, 2024. The term is typically used in relation to domains which fall outside national jurisdictions, but are not subject to any claims of sovereignty, and are free to access and use by everyone.(70) Crawford (2019), 191-192. An example of such a domain is the high seas.(71) Ibid. The res communis character of outer space can be seen reflected in the non-appropriation principle of the OST Article II, and the freedom to use space of Article I.(72) F. von der Dunk (2015), 56-57. The term ‘global common’ is besides used interchangeably with res communis, and outer space is, in the same sense, often referred to as a global common.
Another communal concept also mentioned in the legal discussion of natural resources in outer space, is the ‘common heritage of mankind’ [CHM]. This term is in verbatim incorporated in the Moon Agreement(73) The Moon Agreement (n. 24), Article 11 (1)., and also the United Nations Convention on the Law of the Sea (UNCLOS).(74) United Nations Convention on the Law of the Sea, Article 136. Montego Bay, 10 December 1982. UNTS vol. 1833. Reg. nr. 31363. Available online: https://treaties.un.org/doc/Publication/UNTS/Volume%201833/volume-1833-A-31363-English.pdf. Last accessed May 20, 2024 It implies that communal realms such as outer space, should not be exploited by sole entities, but benefit all of humankind. The CHM-concept of the Moon Agreement, however, must be read in light of the framework it is incorporated into, thereby differentiating it from the CHM-term of the UNCLOS because of the different realms they apply to.(75) Hobe and Chen (2016), 33. As for space resource exploitation, the CHM-concept has been interpreted by some to suggest that all countries should benefit from the resources contained in outer space – a somewhat controversial notion.(76) Lyall and Larsen (2018), 180.