Fractions
Dr. Dimitrios Karathanassis
In: ContraLegem 2022/1, S. 4ff.
- Swiss law under pressure from international developments.
- The law in Switzerland is coming under increasing pressure from international developments, be it the climate movement, the Ukraine war or the Covid pandemic. This pressure is triggered by the media.
On Monday evening, 28. February 2022, Zurich’s Grossmünster will shine in blue and yellow as a sign of solidarity with Ukraine, which has been attacked by Russian troops. According to media reports, 20,000 people march peacefully through the city with candles and posters; they protest against the invasion of Russian troops, one hears slogans again and again in the alleys of the Niederdorf.
A few hours earlier, the Federal Council announced that it would now implement the EU’s sanctions packages of 23 and 25 November. It was the first time that the European Parliament had taken over. The assets of persons and companies listed by the EU are also frozen in Switzerland with immediate effect and financial sanctions are being enforced against Russian President Vladimir Putin, Prime Minister Mikhail Mishustin and Foreign Minister Sergey Lavrov. As a basis for this decision, the Federal Council declares its desire to strengthen the effect of EU sanctions against Russia and thus also decides to revoke the 2009 agreement on the To partially suspend visa facilitation for Russians and to close Swiss airspace to all aircraft with Russian markings . In the same announcement, the Federal Council also reaffirmed Switzerland’s solidarity with Ukraine. The vast majority of the media appreciates this announcement in the late afternoon and supports the measures taken, after days earlier the Federal Council had been dismissed for its The Commission has been strongly criticised by the vast majority of the media in its cautious attitude towards sanctions against Russia.
Regardless of the media response and with a less superficial view, however, the announcement of the Federal Council of 28. February 2022 as the biggest foreign policy break in Swiss politics and as a paradigm for (foreign) politics in the age of the media society.
The Federal Council substantively bases the adoption of EU sanctions on Art. 185 Federal Constitution (external and internal security):
- The Federal Council takes measures to safeguard Switzerland’s external security, independence and neutrality .
- It shall take measures to safeguard internal security.
- It may, directly on the basis of this Article, issue regulations and orders to prevent serious disturbances which have occurred or are imminently threatened with public policy or internal or external disturbances. This is the first time that we have had a debate on this subject Such regulations should be limited in time.
- In urgent cases, he can mobilize troops. If he offers more than 4000 members of the armed forces for active service or if this deployment is expected to last longer than three weeks, the Federal Assembly must be convened immediately.
The Federal Council may therefore take measures if they affect Switzerland’s external security, independence and neutrality.
By adopting the EU sanctions, not only foreign law is adopted, but also a type of law that results in a clear foreign policy position of Switzerland. This clear foreign policy position is contrary to independence and neutrality and could only be justified – based on the wording of the law – by external security. . If, however, external security is intended through a clear foreign policy positioning, this leads to a contradiction – not only semantic – that is clear political positioning. the opposite of independence and neutrality, so that external security on the one hand and independence and neutrality on the other are necessarily mutually exclusive. This finding, as banal as it seems, is an epochal breach of Swiss foreign policy, even of the Swiss raison d’être, which does not regard Switzerland’s independence and neutrality as a contradiction. Restriction or even endangerment of external security, but as its basis .
As soon as the sanction was announced, a public debate began about this decision by the Federal Council and whether it buried Switzerland’s neutrality. Thus it was rightly pointed out (cf. Marco Jorio in the NZZ of 14. March 2022) that there is a distinction between neutrality law, which does not allow participation in wars, no crossing of territory by warring troops, no state The supply of arms to warring parties, and does not provide for the formation of combatant troops for a warring party, as well as the policy of neutrality, which includes all measures taken by a State through its In order to ensure the credibility of its neutrality in the event of war. According to the prevailing opinion, the adoption of the EU sanctions has not violated the right of neutrality. Whether, on the other hand, it is still possible to speak of Switzerland’s policy of neutrality at all, is extremely questionable.
Swiss neutrality has been criticized in the past – not always without reason – especially in dealing with those persecuted by the National Socialist regime in Germany (e.g. Case Spring). Critics have rightly pointed out that the refusal to grant protection to persecuted individuals is difficult to justify tolerably with foreign policy ideals. This is one of the reasons why Switzerland has been a member of the city since the end of the 2nd century. During the World War, neutrality was not defined as a „look away“ or “ a delegation of responsibility“, but was guided by the recognition that international Conflicts are complex and that the parties involved should be able to rely on an independent mediator for their resolution.
Acknowledging that international conflicts are complex is the basis for understanding and ending these conflicts. Truth is the first casualty in all wars (as Hiram Johnson did) and a clear good-evil division of the actors may be necessary for the achievement of political goals. but does not help to understand the conflict. Rather, the classification of the actors as good and evil at the beginning of a conflict represents a moral and political judgment before the facts are available and – here it becomes difficult for conflict resolution – is tantamount to prejudging the actors. Don’t get me wrong: The condemnation of actions (e.g. bombardment of the civilian population, illegal invasion, etc.) is not to be equated with the condemnation of the actors and their considerations and motives underlying such actions, one thinks of the different moral evaluation The bombardments of London and Leipzig during the 2nd century World War II. The condemnation of actions is a sign that there are clear values of what is acceptable (not only legally) to do (or refrain from) regardless of the actor. The condemnation of the 6 actors, on the other hand, is a clear positioning, a partisanship that makes conflict resolution more difficult. Only if the actors are not treated a priori „neutrally“ can they be brought together at the same table. No one will go to the negotiating table when the verdict on him has already been passed.
By adopting the EU sanctions against Russia, Switzerland has clearly positioned itself in foreign policy and largely abandoned its policy of neutrality. You can want that, but you also have to say goodbye to the idea that Switzerland will now be able to make an essential contribution to ending this conflict. And while it is not yet entirely clear at this point how Switzerland’s external security will be protected by the adoption of the sanctions, it is possible to say that this will not reduce the suffering of the civilian population in Ukraine, but will make diplomatic mediation between the parties to the conflict more difficult. Switzerland’s leadership will probably be extended. This rupture also means that Switzerland must begin to redefine its role in world politics. Her role as a mediator in international conflicts has been severely scratched.
However, Switzerland’s break with the guiding principles of its foreign policy to date also serves as a paradigm of the media society, without which it cannot be understood.
The partisanship – also moral – at the expense of independence and neutrality took place under pressure from the media. Nothing is known of pressure from other states and has not been communicated in this way by the Federal Council. The clear partisanship of the Federal Council is all the more surprising as experience – also in casu – shows that Swiss banks are completely independent of Federal Council decisions. Sanctions – e.g. of the US and the EU – usually for themselves in order to be able to continue to process transactions in USD and EURO and not to be targeted by foreign authorities. The Federal Council’s announcements that it will adopt the EU sanctions make the work of Swiss banks easier, but they do not affect them. The Federal Council has thus not focused on the actual implementation of the sanctions – in the financial sector , they were carried out autonomously by the banks and from their Interests – but on the external image of Switzerland. Politics in the media society is always, or above all, perception . In this light , the more than questionable appearance of the Federal Council President Cassis, who at a pro-Ukrainian demonstration with a live Circuit with the Ukrainian President Zelenskyj not only certified him to defend the values of Switzerland, but then also on Twitter as a friend („my friend“) described. Zelenskyj , on the other hand, was more of a realpolitiker and used this media attention to demand the freezing of Russian funds in Switzerland and Nestlé, one of the largest Swiss politicians. To criticize employers and taxpayers because Nestlé still supplies products to Russia. In essence, a foreign head of state was courted by the Federal President, who tried to dictate to him how to govern. The Federal President even expressed his gratitude for this. What was legally and politically a very questionable appearance by Cassis was largely celebrated by most of the media, which demanded a clear partisanship of Switzerland.
But this „cry“ for partisanship by the media was also an urge for supposed clarity: here the good side ( Ukraine, the West), there the bad side (Russia). This narrative not only allows quick and easy answers to difficult questions, but also creates the impression of resolving the complexity of the conflict, the world . Yale professor Jeffrey Sonnenfeld gained notoriety in a short period of 7 years by maintaining a constantly updated list of Western companies that withdrew from Russia after the war began. and at the same time denounced those who are still active on the Russian market. Asked about the negative consequences for some Western companies still operating in Russia , Sonnenfeld replied that there was no grey area in the „Russia question“, but only Black or white. Lists that classified persons (including legal ones) on the basis of a moral/ideological judgment have existed since Sulla’s proscriptions and hardly any terror regime is without them. The naming-and-shaming list from Yale, as much as it wants to achieve „good“, is very appealing in its simplification and clarity, but misses the complexity to mirror. Such a simplification, even infantilization, of the conflict ignores reality, but allows polarization and thus serves as a basis for sensational headlines. . It is characteristic of the media society that a large part of its members no longer wants to endure complexity and contradictions. Clear positioning, clear „announcements“, clear guidelines, a clear distinction between white and black are in demand. The detailed examination of the other side and its arguments seems laborious and per se is not suitable for the functioning of the media society, because it is time-consuming, while at the same time more and more headlines have to be produced.
For example, the question of why Russia invaded Ukraine was almost irrelevant just a few days after the invasion. This question would be essential for conflict resolution. Russia – or Putin – is evil. It is also fitting that it is often not spoken of „Russia’s“ war, but of Putin’s. The numerous articles dealing with his mental health testify to an assumption that the conflict can be explained by the insufficiency of the Russian president. would be. This may be less related to a genuine concern for his health than to the desire to give „evil“ a face. The personification of state actions is mainly done to further reduce complexity.
This clear partisanship is not inconvenient for politicians, because at the same time as it and the further escalation of the conflict, questions about the responsibility of the West in this war disappear. about the rule of law and corruption in Ukraine, questions about Ukraine’s treatment of its pro-Russian population and diplomatic misconduct by Western politicians, questions about Energy policy mistakes and why a few months ago African refugees were turned away at the exact same European border posts, while now these border posts for Ukrainians are open. These self-critical questions no longer need to be answered, because good and evil are defined and the idea that the „good guys“ share responsibility for the actions of the “ bad guys“ “ is no longer posed in an almost religious way. And as much as the increasingly horrific reports about the war in Ukraine call for partisanship, it must be remembered that partisanship is a is and must remain a personal, individual decision and must only be made at the state level when Switzerland’s interests really demand it. Taking sides to give in to media pressure may be opportune for individual politicians, but realpolitik with a neutral Switzerland as an actor takes place outside these spheres. Off. A closer look at certain events , however, raises other, unpleasant questions : What exactly distinguishes Russia’s war of aggression and the desired regime change from the actions . of the West in Iraq or Libya? How can one be right and the other wrong when 8 is foreign intervention in both cases? Significantly, in Iraq and Libya, the West used the same arguments as Russia does in Ukraine: the prevention of genocide, the protection of certain populations, the stability of the region. The results are known and should be no different in the case of Ukraine. And to return to sanctions: What exactly distinguishes the current conflict from others where Switzerland was not prepared to impose sanctions? Are there really objective reasons or is the wave that can be shaped by the media now so large that politicians have to duck before it ? And yes, there is war in Europe, but it already did in the 90s in the Balkans and in the 70s in Cyprus. But the supposed „uniqueness“ of this conflict allows for more violent headlines than the confrontation with the fact that Europe has many unresolved trouble spots ( e.g. Ireland, Basque Country, etc.), its neighbours have partly repressive regimes (e.g. Belarus, Turkey) and, above all, Russia, have regularly instigated wars for which Europe and the West had only vague consequences. Also the questions of why the import of gas and oil from countries from the Middle East should be problem-free and why business with China, which persecutes the Uighurs, continues are fine, must be asked at some point. These questions cannot be answered with moralistic partisanship, but only with reference to realpolitik. One may find this offensive, but to deny it is a glorification of the reality in which the international order of states operates.
And yet, this glorification of reality and the insistence on partisanship on the basis of morality creates a dangerous slipstream of indignation over the supposedly unique „event“ of the Russian invasion. In this slipstream, measures are being adopted that would have been unthinkable just a few weeks ago : the increase in military budgets in many countries by several hundred billion euros. or dollars. When rescuing indebted countries in the eurozone , it felt like every euro was taken care of, now Europe is arming as if spending were not a problem for future generations. It is still too early to say how the war will end, but the losers – the suffering Ukrainian people and the future taxpayers – and the winners – the arms industry – are already fixed.
A clear partisanship creates the impression of a clear state of affairs, but the view for nuances is lost. The Covid-19 pandemic has shown how, in just a few months, the population has separated into vaccine advocates and opponents of vaccination , who hardly have a common communication denominator with each other. could find. However, such a policy, such media coverage, which offers little room for nuance, paves the way for radicalisation and the positioning of the Politics in this war opens Pandora’s box to another evil that already seems to be escaping from it: attitude and a policy based on sentiment and attitude. is not based on law. Supermarkets withdraw Russian products from the market, Russian athletes and sports clubs are excluded from international competitions, performances by Russian artists are cancelled , Russian assets are frozen because they belong to a person with a Russian passport. These measures are only possible if collective guilt is assumed. Collective guilt, however, requires that one has a clear attitude, that one not only blames the one party to the conflict , but also the Individuals who belong to this party by birth, chance or free choice. It is not the actions of a person that serves as an indicator of his conviction and condemnation, but his characteristics, in casu nationality. 9This necessarily contributes to the escalation of the conflict and it is not far from this attitude to hatred, at the latest when the local incited population in the form of higher taxes and energy prices will have to bear the costs of the escalation. Moreover, such an attitude makes it difficult to return to peaceful normality because, unlike newspaper articles, emotions cannot simply be overwritten. Accepting collective guilt and making decisions based on it does not do justice to a constitutional state. The ultimatum of the city of Munich by its Lord Mayor to the Russian conductor of the Munich Philharmonic Gergiev to distance itself not only from the conflict, but also from Putin, is disturbing, because it presupposes a certain individual attitude approved by the state in order to be able to practice a profession, in order to be able to practice art. Politically, this ultimatum and the subsequent dismissal of Gergiev may well have found support, but is hardly with one on the right and not the attitude. based on the rule of law. The Zurich Opera House initially pointed out in an exemplary manner in accordance with the rule of law that it had no information about political positions from its artists due to a lack of legal basis. can catch up. A few days later, however, it cancelled performances by Anna Netrebko – at least amicably with the artist, but under heavy media pressure. Such pressure to justify individuals is actually only known from totalitarian states. Comparisons with the McCarthy era are premature, but the parallels are becoming increasingly clear. Today it is the Russians, tomorrow it can affect anyone.
The culture of outrage as an inherent part of the media society certainly promotes a politics based on attitudes. One can, perhaps even must, criticize Donald Trump’s populism, but at the same time one must be aware that by simplifying politics – based on him , he Acceptable media – which provided the blueprint for the West’s current policy of convictions . It is not true, of course, that the West should not defend itself and its interests. However, it must be remembered that this has been badly neglected over the last three decades. The defense of Western interests must not be carried out by the duty of individuals to create a supposedly morally superior – in the worst case even state-propagated – This is the first time that we have had a debate on this subject. The fact that individuals – including state – have to adopt moral concepts in order to circumvent reprisals is a breach of taboo. The greatest merits for Western values have always been earned by admonishers and critics. The demand to take a clear position is politically understandable, but wrong under the rule of law. Politics cannot do without moral convictions, without clear ideas, and the media need simple, clear facts for their headlines. The problem and the danger, however, are that the principles of the rule of law are neglected or even thrown overboard. Attitudes must not and cannot be the yardstick by which individuals are legally evaluated. Even opinions that differ from the mainstream deserve protection. Thoughts, as disturbing as they may be in individual cases, are and must not be punishable or have other repressive consequences. Within what is legally permissible, the individual – in order to be such at all – must be able to position himself morally freely and without fear of state consequences and to To express one’s attitude – whatever it may be. If this is not possible, the threshold to totalitarianism has been crossed. Shockingly, we have now reached the point where there are serious proposals to overthrow one of the most important pillars of the rule of law: legal professional privilege should not be applied to Persons who are on (sanctioned) lists apply. Putting certain people on 10 lists (for political reasons, mind you) and then denying them legal protection must be an absolute taboo for a constitutional state. It is no different with the recently drafted proposal of some politicians that blocked assets of „Putin-close“ oligarchs should not only be frozen. , but also to be confiscated and used for a specific purpose, such as the reconstruction of Ukraine. As much as one may see the good intention in this proposal , it is dangerous , as it breaks with the guarantee of property and allows the expropriation of the state. of persons on the basis of political considerations. If one breaks with these principles of the rule of law, one also breaks with the rule of law as such, which must not only affect politics and administration, but also also become clear to the media and to each individual. Countering an unquestionably difficult political situation with such more than questionable means under the rule of law will not solve the (foreign) political problems, but will ultimately lead to the erosion of the Rule of law.
Of course, and this is the realization that is leaking more and more, the media are moving away from Augstein’s „writing what is“ to „writing what should be“. After the first reports of a possible massacre of Ukrainian civilians by Russian soldiers in the village of Butscha emerged at the beginning of April, the FDFA reacted – probably also Cassis‘ mishap. in mind – by calling for an independent investigation and criticizing the violations of international law. Switzerland at its best: an insistence on rules, even if others break them. Blick’s reaction was to describe Cassis, the head of the FDFA, as a fabric softener because he had not taken sides more clearly and he did not show sufficient toughness against Russia. . Cassis reacted to this: He praised the fact that Switzerland was not only on course in implementing the sanctions , but was one of the best in the world. Apart from the question of how and with what sense and purpose the „best in the world“ should be evaluated in the Russia sanctions, it reveals a policy that is driven by the media „what should be“. The German journalist Nikolaus Blome directly accused German Chancellor Olaf Scholz in an article of not wanting to be driven by the media after he In Blome’s view, he had acted too cautiously in the Ukraine war. The Chancellor, according to Blome, is „not driven by reason or to the right“ and that is childish and costs time. Not only that the journalist was already propagating for himself what was right and reasonable – at least that could be qualified as an opinion – but the fact that the fourth estate It is problematic and – one has to Say clearly – dangerous. The separation of powers also applies to the media, even if this is increasingly forgotten by their representatives under the activist haze of „writing what should be“.
In the same vein , the politicians and „experts“ who attest to Switzerland doing too little against Russia and against the assets of Russian citizens, and who the USA and openly call on the EU to put pressure on Switzerland. They advocate the de facto suspension of banking and legal secrecy and direct action by the US authorities against Swiss lawyers if there are indications that they break with US sanctions on behalf of their Russian clients. The argument repeatedly put forward is that Switzerland has expressed its „restraint“ through the „restraint“ (allegedly perceived by foreign countries, but at least as expressed in the media). „good reputation“. To define foreign public opinion as an indicator of political action is strange in itself and testifies to an inferiority complex, but on this altar To want to sacrifice the rule of law is – let me be clear – a rupture that will result in the end of Switzerland’s liberal, liberal order. The joint article published in the Frankfurter Allgemeine Zeitung at the end of May by Michael Ambühl, Professor Emeritus at ETH Zurich and former State Secretary of the Swiss Foreign Ministry, Nora Meier, Managing Director the Swiss School of Public Governance at ETH Zurich, and Daniel Thürer, Professor Emeritus at the University of Zurich and former Chairman of the German Society of International Law and former member of the OSCE Arbitration and The Court of Conciliation gives a deep insight into how much the political will to shape seduces to suspend elementary legal principles. In their article – nota bene only published in a foreign medium – the three authors propose confiscating Russian assets of „sanctioned Russian oligarchs“ for the purpose of rebuilding Ukraine. and strive as “ inspiration“ Art. 72 SCC. This standard provides for the confiscation of assets of criminal organisations. In respect of assets of a person who has participated in or supported such an organisation, Article 72 of the Criminal Code provides that the organisation’s power of disposal is to be exercised until proof of the The opposite is suspected. Based on this , according to the authors, „in principle, all assets could be confiscated, unless the persons could prove that they were not involved in the war of aggression provoked by Putin. are involved in or support them“. Ambühl, Meier and Thürer conceal the fact that Art. 72 of the Criminal Code does not provide for a general reversal of the burden of proof – such a reversal would also not be lawful and neither with the Swiss law still compatible with the ECHR. Rather, Article 72 of the Criminal Code applies only to the assets of persons who, by judicial and independent judgment, have been granted membership of a criminal Organization has been demonstrated. Ambühl, Meier and Thürer , however, ignore this complexity, as well as questions of international law, and demand from a more undefined group (sanctioned Russian Oligarchs) issued a public political statement (in casu against Russia’s actions) to avoid confiscation of assets: „An explicit public distancing from the Kremlin would be relieving. Otherwise, following such an approach, support would be accepted.“ With their article, the authors catapult us back to times when a person’s mindset decided whether they would be subject to state repression, to times when In times when opinions deviating from state doctrine were directly sanctioned, in times when political and moral ideas overrode the law, in times when fundamental principles of the rule of law such as freedom of expression, guarantee of property, presumption of innocence, causality between action and sanction, principle of legality , prohibition of retroactivity and prohibition of analogy – in order to to name just a few – could be undermined at any time in pursuit of political goals or did not even exist. A political goal , no matter how noble, remains a political goal and must bow to the law. A reversal in which the political goal bends the law opens the door to (political) arbitrariness . And whoever wants to make politics in this way, makes politics that focus on the radicalization of the population, the superficiality and simplification of complex problems, the production of Prohibitions of thought, which promotes Nibelung loyalty to state morals and dependence on the media and thus carries the rule of law to the grave.