The New York University Journal of International Law and Politics

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REJOINDER:
JUSTICE BEFORE JUSTICIABILITY:
INTER-AMERICAN LITIGATION
AND SOCIAL CHANGE
J
AMES
L. C
AVALLARO
* & E
MILY
S
CHAFFER
**
I. I
NTRODUCTION
In this issue of the N.Y.U. Journal of International Law and
Politics,
1
Tara Melish critiques a piece that we published in vol-
ume 56 of the Hastings Law Journal.
2
That piece, based in sig-
nificant part on our combined experience working with rights
defenders and social justice movements in Latin America for
two decades and litigating scores of matters before the Inter-
* Clinical Professor of Law, Harvard Law School; Executive Director,
Human Rights Program, Harvard Law School. A.B. Harvard College, 1984,
J.D., University of California, Berkeley (Boalt Hall), 1992. Petitioner and
advocate in some fifty cases litigated before the Inter-American Commission
and Court of Human Rights.
** Attorney, Bromberg & Sunstein LLP. A.B., Stanford University, 1995,
J.D., Harvard Law School, 2001. Harvard Henigson Fellow, Inter-American
Court of Human Rights and Global Justice Center, Rio de Janeiro, Brazil,
2003-2004.
The authors would like thank Professor Ryan Goodman, Director of the
Human Rights Program, and Tyler Giannini, Clinical Director of the Human
Rights Program, Harvard Law School, for their comments, and Daniel
Braun, Stephanie Brewer, Fernando Delgado, Jacob Kopas, and Deborah Po-
powski for their research assistance and thoughtful critiques of earlier drafts
of this Rejoinder. We also thank the students in the human rights advocacy
course at Harvard Law School, taught by Cavallaro and Binaifer Nowrojee, as
well as the students in the human rights advocacy course taught by Clinical
Professor Peter Rosenblum at Columbia Law School. James Cavallaro had
the opportunity to present this Rejoinder to both groups in the fall 2006
semester; the authors benefited from the comments and critiques of those
two seminars. Finally, we would like to thank the editors of this journal for
their critical review of this text and their valuable suggestions.
1. Tara J. Melish, Rethinking the “Less as More” Thesis: Supranational Liti-
gation of Economic, Social, and Cultural Rights in the Americas, 39 N.Y.U. J. I
NT
’
L
L. & P
OL
. 171 (2007) [hereinafter, Melish, Rethinking].
2. James L. Cavallaro & Emily J. Schaffer, Less as More: Rethinking Supra-
national Litigation of Economic and Social Rights in the Americas, 56 H
ASTINGS
L.J. 217 (2004). In the text, we refer to this as the “Hastings” piece or article,
or as Less as More.
345
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INTERNATIONAL LAW AND POLITICS
[Vol. 39:345
American Commission and Court, challenged some of the
conventional wisdom regarding the expansion of the jus-
ticiability of economic, social, and cultural (ESC) rights. We
expected that those invested in the system might react
strongly. Such appears to be the case with Tara Melish, to
whose article we now respond. Though we differ as to the in-
terpretation of recent Court jurisprudence, the main tension
between our approaches centers on the role of supranational
litigation in promoting social justice. While Melish champions
ESC justiciability in the inter-American system apparently in a
vacuum, we support an approach to litigation in the system
that considers the severe limits (in numerical and political
terms) on such litigation, as well as the factors that foster or
detract from the impact of determinations of the Commission
and Court within Latin American states.
Melish’s consistent mischaracterization of our arguments
might lead the reader to believe that we are diametrically op-
posed, with Melish as the champion of ESC rights and Caval-
laro and Schaffer as misinformed opponents. In fact, we
neither oppose supranational litigation of ESC rights in princi-
ple nor misunderstand (as Melish asserts) the principles of pe-
titioning the inter-American system. The false tensions that
Melish emphasizes dissipate when one reviews the arguments
in our original piece, rather than those she imputes to us, and
when one recognizes that Melish’s outline of principles to
guide the litigation of ESC rights in the inter-American system
is merely her proposal and not an accurate description of ac-
tual caselaw.
This Rejoinder summarizes our initial position to clarify
our common understandings, seeks to correct the record with
regard to Melish’s misstatement of our argument,
3
responds to
her critique where relevant to our initial thesis, and reiterates
and refines what we believe to be elements of the wisest path
forward to promote social justice through supranational litiga-
tion in the inter-American system.
4
3. It is not possible, in the limited space available, to respond to each of
the mischaracterizations, citations out of context, and overstatements of our
position that appear in the accompanying article by Tara Melish. See gener-
ally Melish, Rethinking, supra note 1.
4. Unfortunately, throughout her piece, Melish presents an inaccurate
understanding of our argument. By taking terms and assertions out of con-
text, overstating our position, and/or by extending the limited framework
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REJOINDER: JUSTICE BEFORE JUSTICIABILITY
347
II. T
HE
T
ERMS OF THE
D
EBATE
A. The Less As More Argument
In our Hastings piece, we set out our main thesis in the
following terms:
[G]iven the limited resources of [the inter-American
system], the potentially adverse consequences of de-
veloping legal standards that may not be applied, and
the potential—inherent in the development of novel
jurisprudence—for undermining states’ respect for
the system itself, less frequent and more focused liti-
gation may, in fact, be more valuable. In particular,
we urge lawyers and activists in the Inter-American
system to recognize the limited and often subsidiary
role of legal advocacy in promoting the recognition
of economic and social rights and distributive justice.
In the end, we conclude that successful promotion of
economic, social and cultural rights in the Inter-
American system should be incremental, firmly
grounded in established precedent, and always
linked to vigorous social movements and effective ad-
vocacy strategies.
5
The Hastings piece traces the historical development of
civil and political and ESC rights in the inter-American system.
It recognizes that, historically (and based on the instruments
in force in the system today), civil and political and ESC rights
have been treated differently. The piece notes that, while the
American Declaration includes specifically enumerated ESC
rights, the American Convention includes instead a single,
general, and vague provision on ESC rights in article 26. The
Hastings piece summarizes the theoretical developments over
the past few decades that have demonstrated that the classic
distinction between civil and political and ESC rights is fraught
with problems;
6
it also asserts that the more coherent under-
within which each statement is made, much of Melish’s piece responds to
arguments that we have not asserted. In this brief piece, we will not be able
to respond to each of the many times that Melish misstates our position. We
encourage anyone who has read her text, however, to read our initial Has-
tings piece.
5. Cavallaro & Schaffer, supra note 2, at 218-19.
6. Id. at 252-54.
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standing focuses on the similar duties that states have with re-
spect to both sets of rights.
In light of the limits of article 26 of the American Conven-
tion, as well as states’ possible resistance to jurisprudence not
firmly grounded in their understanding of the system’s instru-
ments, the Hastings article urges practitioners to seek to ad-
vance social justice agendas by relying on the safest grounds
possible, though without closing off avenues for further, grad-
ual development. While we question the historical bases that
have led the inter-American system to treat civil and political
rights and ESC rights differently, we also recognize in Less as
More that real, meaningful differences in the relevant instru-
ments and caselaw limit the possibility of vindicating ESC
rights before the Court through the application of article 26.
In light of this, we set out a range of ways that litigants might
seek to advance social justice by litigating in the inter-Ameri-
can system. Among the techniques that we highlight are those
that focus on ESC elements in civil and political rights, pro-
gressive interpretations consistent with article 29 of the Ameri-
can Convention, the non-discrimination principle, and the ec-
onomic and social rights for which access to the Commission
and the Court is recognized in the San Salvador Protocol.
We argue in the Hastings piece that practitioners must
come to terms with the limited access the system provides in
real, numerical terms, as well as the weakness of article 26,
when designing litigation strategies to promote social justice.
We emphasize that the on-the-ground impact of the system’s
determinations has not correlated directly with the merits of
those determinations but rather has varied in relation to con-
current social justice organization, media engagement, and
civil society strategies.
7
As a consequence of this broader con-
text, we call on practitioners to deploy the system within its
limits and to seek means of promoting social justice through
well grounded litigation in conjunction with social move-
ments, civil society, and media strategies, rather than through
the promotion of isolated and overly broad supranational deci-
sions on ESC rights.
With regard to article 26 and ESC rights, the Hastings
piece focuses on matters before the Court or litigation that
7. Id. at 240, 251.
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349
might progress to the Court.
8
We recognize that the American
Declaration expressly enumerates ESC rights and therefore
may constitute the basis of claims to the Inter-American Com-
mission, though not to the Court. We refer in Less as More to
claims that incorporate both civil and political and ESC rights
(through the Declaration, for example) as hybrid cases and
encourage litigants to make use of this strategy. In all cases,
we urge litigants to work closely with social movements to en-
sure that efforts to deploy the inter-American system maximize
its potential to promote real change on the ground.
B. Areas of Consensus and Difference
Based on this understanding of our position (rather than
Melish’s version thereof), we contend that the main points on
which we and Tara Melish concur include:
• First, while historical circumstances have led
to a Manichean dichotomy between civil and political
rights on the one hand, and ESC rights on the other
hand, the theoretical basis for this understanding is
flawed. The preferred understanding is that civil and
political, as well as ESC rights, include both positive
and negative elements and impose on states a spec-
trum of obligations that range from refraining from
direct violations of rights to providing goods and ser-
vices.
9
• The American Declaration on the Rights and
Duties of Man (1948) sets forth ESC rights in greater
detail than the American Convention. Petitions
based on the American Declaration may be taken to
the Inter-American Commission, though not to the
Court. Petitioners may therefore seek to challenge
ESC violations to the Commission by drawing on the
rights protected in the American Declaration.
• The Inter-American Court has not, to date,
embraced any claim, nor issued any decision, in
which it found a violation of article 26. While Melish
argues that a proper understanding of article 26 re-
quires the Commission and Court to adjudicate viola-
8. See id. at 264-68.
9. See id. at 252-53.
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tions of certain ESC rights, it is clear that the Court
has yet to do so.
• Sweeping Court decisions on the progressive
implementation of ESC rights for entire states are un-
likely to be enforced and would represent overreach-
ing by the Court. Melish refers to this type of litiga-
tion strategy as an inappropriate focus on quadrant 4
elements, that is, progressive, result-oriented duties,
appropriate only for monitoring but not judicial reso-
lution.
10
In outlining litigation strategies to advance
social justice, we too underscore the need to focus on
“specific situations of abuse and victims”
11
rather
than general conditions affecting broad populations.
• More litigation, if it is not well designed, will
promote neither social justice nor the efficacy of the
inter-American system. Tara Melish concurs with this
analysis, stating in this edition of the N.Y.U. Journal of
International Law and Politics that she firmly subscribes
to the view “that more focused, responsibly-crafted,
higher-quality litigation leads to better results, both
jurisprudentially and on the ground.”
12
• In order for a claim to be justiciable, it must
involve several elements, including concrete injury to
specific persons and proximate cause,
13
as well as
other aspects demanded by the admissibility rules of
10. See Melish, Rethinking, supra note 1, at 259-64. The concern that we
expressed in Less as More about broad findings of ESC rights abuse through
article 26 may be framed within Melish’s scheme as focusing on quadrant 4
duties. We are less concerned about the potential fallout from an ESC claim
framed in quadrant 1 terms. This opinion, however, is largely academic in
light of the Court’s refusal to permit direct, article 26 access for any ESC
claims, at least to date.
11. Cavallaro & Schaffer, supra note 2, at 272. There, we call on litigants
to seek cases involving “clearly specified violations and clearly identified vic-
tims . . . .” Id. at 272-73. We go on to note: “In other words, a petition
denouncing the violation of the right to education of a particular commu-
nity . . . will have a greater chance of implementation than a decision finding
a general violation of the right to education affecting all children . . . .” Id.
12. Melish, Rethinking, supra note 1 at 179.
13. In one section, Melish devotes several pages to the aspects of peti-
tions not included in our brief sketches of hypothetical cases in Less as More.
See id. at 264-68. The flaws in this aspect of Melish’s critique will be discussed
in greater detail below.
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REJOINDER: JUSTICE BEFORE JUSTICIABILITY
351
the inter-American system. While we do not address
these separate requirements, we believe that nothing
in our Hastings piece would suggest that we fail to
recognize the core elements of an admissible petition
in the inter-American system.
14
• The four quadrant proposal for the litigation
of ESC rights as described by Melish presents a coher-
ent repackaging of recent scholarship on ESC rights
that may be superior to the existing framework devel-
oped by supranational bodies, which tend to con-
strue instruments based on the outdated dichotomy
between civil and political and ESC rights.
15
It would be difficult to overemphasize the importance of
recognizing these broad areas of consensus. When one real-
izes, for example, that our initial Hastings piece does not ques-
tion the justiciability of ESC rights in principle, nor does it dismiss
the possibility of litigating ESC rights using the American Dec-
14. Melish accurately summarizes these elements as:
(1) proper subject matter jurisdiction (ratione materiae) over the in-
voked norm by the adjudicating body; (2) temporal and spatial ju-
risdiction (ratione temporis and loci) over the facts giving rise to the
claim; (3) personal jurisdiction (ratione personae) over the parties to
the litigation; and, closely related to this latter element, (4) the
presentation of a justiciable controversy—i.e., one demonstrating
concrete harm to individualized rights-holders and a causal nexus
between that harm and the conduct of the state.
Id. at 211. She notes in the accompanying footnote that “[t]he Commission
addresses each of these categories, along with those previously mentioned,
in every case-related admissibility report it issues. Only when the Commis-
sion is satisfied it enjoys proper jurisdiction over the contours of each claim
presented to it will it proceed to the merits phase in resolving the case.” Id.
at 211 n.97. We offer readers our apologies if anything in the hypothetical
cases section of the initial Hastings piece may legitimately be construed as
suggesting otherwise and thank Tara Melish for underscoring the necessity
of complying with the requirements of the inter-American system in filing
petitions to this system.
15. Again, while we see the benefits of Melish’s approach as academics,
as practitioners we must recognize that the instruments and caselaw of the
inter-American system recognize differences in the justiciability of civil and
political and economic, social, and cultural rights. Cavallaro & Schaffer,
supra note 2, at 223-24, 267-68. We imagine that Melish would phrase this
last point of consensus somewhat differently, minimizing the extent to which
dissonance from her theory still exists in the work of the inter-American sys-
tem.
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INTERNATIONAL LAW AND POLITICS
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laration, the basis for much of Melish’s critique simply col-
lapses.
Apart from the illusory tensions and mischaracterizations
of our thesis that pervade her piece,
16
relatively little of what
Melish writes responds to our article.
17
Still, despite these
broad areas of consensus, we disagree with Melish in several
respects. We address each of these briefly in this Rejoinder.
First, it is clear that we disagree with Melish’s current posi-
tion
18
on the possibility of success in using article 26 to ad-
vance ESC rights. Our reading of the instruments of the sys-
tem, as well as the Court’s jurisprudence in this area, leads us
to find relatively little hope in what we and Melish term the
“direct” approach to litigating ESC rights before the Court.
We also differ as to the possibility that states would react nega-
tively to Court decisions extending the reach of article 26. We
address Melish’s critique of our position on article 26, recent
Court jurisprudence in this area, and the likelihood of state
resistance to the expansion of article 26 in Part IV.
16. A good example of this is section VI(C). In that section, Melish ar-
gues that if one applies her four quadrant approach to ESC litigation,
queue-jumping tensions as between ESC and civil and political rights are over-
come. This argument purports to respond to our opposing view of queue-
jumping. In fact, we do not argue in Less as More that ESC litigation involves
specific queue-jumping but, rather, that all litigation (including interna-
tional human rights litigation) involves some degree of queue-jumping. Me-
lish’s “response,” on its own terms, appears to present a coherent challenge
to an argument we do not make. However, when one realizes that we no-
where present the argument Melish imputes to us, this section—like many
others—loses its purpose. See Melish, Rethinking, supra note 1, at 182 (mis-
characterizing our conclusion about queue-jumping). Compare Melish’s
portrayal with our analysis of this issue. Cavallaro & Schaffer, supra note 2,
236-40, 281.
17. Much of the article promotes Melish’s “four quadrant theory” of jus-
ticiability.
18. To be more clear, it is evident that the positions in our Hastings
piece and in Melish’s article in this edition are in conflict. Compare Cavallaro
& Schaffer, supra note 2, at 267-69 with Melish, Rethinking, supra note 1, at
220-25. As we discuss in Part IV, infra, Melish’s earlier writing suggests, at
least, the belief that article 26 constitutes weak terrain for advancing ESC
rights in the inter-American system. See, e.g., T
ARA
M
ELISH
, P
ROTECTING
E
CO-
NOMIC
, S
OCIAL AND
C
ULTURAL
R
IGHTS IN THE
I
NTER
-A
MERICAN
H
UMAN
R
IGHTS
S
YSTEM
: A M
ANUAL ON
P
RESENTING
C
LAIMS
(2002) 346 [hereinafter M
ELISH
,
P
ROTECTING
] (noting that “[t]he article 26 approach . . . remains quite un-
certain”).
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Second, we differ as to the role of social movements and
organized civil society in the litigation process. While Melish
contends that she agrees with our position in this regard,
19
her
analysis is framed strictly within the legal limits and technical
logic of the inter-American judicial and quasi-judicial system.
Melish attacks us for viewing litigation as part of a strategy de-
signed to promote social justice or produce effects beyond the
litigants.
20
By contrast, we argue that recognizing the limits of
the system (particularly in numerical terms) renders any ap-
proach to litigation that does not seek to produce or at least
encourage effects beyond the case at hand inefficient at best
and misguided at worst. We also contend that listening to and
working with social movements has real consequences for the
framing of litigation and for the ways in which supranational
bodies are best deployed. Quite simply, if a practitioner fo-
cuses on the goal of advancing social justice agendas rather
than advancing the justiciability of ESC rights, her litigation
strategies will differ. Of course, there may and ordinarily will
be significant overlap between these agendas. But this is not
always the case.
Third, in large part as a consequence of our distinct ap-
proaches to the role of social movements, we differ as to the
strategic importance of focusing on cases that involve viola-
tions of the right to life. Melish critiques recent jurispruden-
tial developments by the Inter-American Court that expand
the scope of state obligations in the context of the right to life.
By contrast, we embrace this development as the continuance
19. Melish writes: “Indeed, that litigation—whatever its focus—should
ideally always be accompanied by social movements, local-level follow-up, vig-
orous media advocacy, and national and international pressure campaigns is
unquestionable.” Melish, Rethinking, supra note 1, at 341. She further states:
Based on these unassailable observations, [Cavallaro and Schaffer]
conclude with the equally unassailable recommendation that supra-
national litigants should choose their cases carefully, work closely
with local level organizations capable of generating popular sup-
port, and use a broad diversity of advocacy tools and media strate-
gies to supplement their technical legal arguments. Few could disa-
gree with this neutrally-framed thesis.
Id. at 185-86.
20. Melish writes, for example: “Nonetheless, in focusing their thesis and
case-studies on the inter-American organs’ adjudicatory functions, they mis-
identify the proper forum for generally ‘promoting social justice’ in the re-
gional human rights system.” Id. at 303-04.
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of a positive trend that we identified in the Hastings piece, and
one that we believe should orient social justice advocacy strate-
gies that deploy the inter-American system. We address these
issues in Part VI.
III. B
LURRING THE
I
SSUES
: T
HE
J
USTICIABILITY OF
ESC R
IGHTS IN
T
HEORY AND IN THE
I
NTER
-A
MERICAN
S
YSTEM
Responding to a position that we do not advocate, Melish
details her approach to the justiciability of ESC and other
human rights. Her fundamental premise is that we assume
that ESC rights are not justiciable and that we accept tradi-
tional distinctions between the two classes of rights.
21
In fact,
we challenge only the wisdom of direct litigation of ESC rights
via article 26 before the Inter-American Court, terming it a
“suspect option,” that is, one unlikely to convince the Court
and even less likely to be applied by states. As noted above, we
do not question the access to the Commission for ESC viola-
tions provided by the American Declaration.
22
Melish argues that there should be no distinction whatso-
ever, in terms of justiciability, between civil and political and
ESC rights, as though this view is juxtaposed to our position.
She sets out a four quadrant scheme that seeks to identify the
aspects of ESC rights subject to judicial control and those
suited only for monitoring. The quadrants consider, on one
axis, individual vs. collective obligations, and on the other, ob-
ligations based on conduct vs. obligations based on result.
Crossing the two axes, Melish divides obligations into four
quadrants. Quadrant 1 involves individual-oriented, conduct-
based duties; quadrant 2 concerns individual-oriented, result-
based duties; quadrant 3 involves collective-oriented, conduct-
based duties; and quadrant 4 concerns collective-oriented, re-
sult-based duties. Melish argues that only quadrant 1—indi-
21. See, e.g., id. at 177-78.
22. Ironically, several of the cases cited by Melish in her piece, including
to demonstrate that ESC rights may be addressed in the petitions process
through application of the American Declaration, are ones in which one or
both of the authors have been involved as counsel. See, e.g., Jose Pereira v.
Brazil, Case 11.289, Inter-Am. C.H.R., Report No. 95/03, OEA/Ser.L/V/
II.118, doc. 5 rev. 2 (2003), cited in Melish, Rethinking, supra note 1, at 287
n.334 (in which petitioners alleged violations of ESC rights protected by the
American Declaration).
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vidual-oriented, conduct-based duties—are susceptible to judi-
cial resolution. Quadrant 4 duties are appropriate, by con-
trast, for monitoring.
The differential treatment afforded to civil and political
rights, as opposed to ESC rights, Melish argues, is due to a
generalized failure of states, practitioners, and academics to
appreciate the true nature of rights.
23
Her arguments have
merit, insofar as they consider how the two classes of rights
might or even ought to be treated. In fact, we do not question
their relevance in future negotiations, such as those concern-
ing the optional protocol on ESC rights.
24
But her theoretical
approach is not directly responsive to our arguments, which
are based on the instruments and jurisprudence of the inter-
American system, their interpretation by the Inter-American
Court,
25
and the institutional and resource limits that con-
strain the Court.
26
As Melish herself notes, “supervisory mech-
23. She writes, in this regard:
Because these supervisory mechanisms have, in recent history, been
associated with one category of rights or the other, the particular
dimensions of state obligations assessed by the corresponding su-
pervisory instances—as further developed and doctrinally refined
by academics, advocates, and U.N. bodies—have been tethered
conceptually to the rights supervised, rather than to the jurisdic-
tional parameters of the supervisory instance itself.
Id. at 250 (emphasis in original).
24. Melish closes her piece by emphasizing the importance of an inte-
grated view of civil and political and ESC rights, particularly in light of nego-
tiations on treaties that may provide for direct oversight of ESC rights viola-
tions. See id. at 341-43. We agree that Melish’s approach to ESC litigation
and her critique of the traditional distinction between these two sets of
rights are highly relevant to the debates concerning the Optional Protocol to
the International Covenant on Economic, Social and Cultural Rights and
the new International Convention on the Rights of Persons with Disabilities.
25. In other sections of her article, Melish does challenge our under-
standing of the rulings of the Inter-American Commission and Court. See,
e.g., id. at 178-81. We discuss our differences in this regard below.
26. In an ideal world in which the inter-American system had vast re-
sources and in which all the system’s sentences were duly implemented as
between the parties and for all similarly situated victims, more extensive liti-
gation and more expansive jurisprudence on the scope of the system’s ESC
protections would be positive developments. Indeed, under these condi-
tions, supporting Melish’s innovative scheme for expanding the justiciability
of ESC rights might make sense. See id. at 181-83. However, these ideal con-
ditions do not exist, nor are they likely to develop in the foreseeable future.
Based on the extremely limited nature of the system, then, we argue that the
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anisms have . . . been associated with one category of rights or
the other. . . [a distinction] further developed and doctrinally
refined by academics, advocates, and U.N. bodies . . . .”
27
It is worth noting, as we observe below, that our assess-
ment of the direction of the Court’s developing jurisprudence
has been borne out by that body’s decisions on ESC rights is-
sues in the two years since we published the Hastings piece. As
we discuss in this Rejoinder, the Court has refused to employ
an expansive reading of article 26 that would enable it to find
violations of ESC rights. It has also decided cases in line with
areas of developing jurisprudence that we identified as promis-
ing in Less as More.
28
IV. T
HE
S
COPE OF
A
RTICLE
26, H
OSTILE
S
TATE
R
ESPONSES
,
AND THE
U
TILITY OF THE
D
IRECT
A
PPROACH
A. The Scope of Article 26
In her 2002 guide to litigating ESC rights in the inter-
American system Melish assessed the strength of article 26
claims in the following terms:
While the “article 26 approach” is far more direct
than the “integration approach,” it is also far less
tested. . . . Neither the Commission nor the Court
has, moreover, ever even suggested that article 26, in it-
self, articulates protected rights. The article 26 approach
therefore remains quite uncertain.
29
Since then, the Court has been asked on several occasions
to find violations of ESC rights through article 26.
30
Melish
herself cites five separate opportunities in which the Court,
Court is most effective when it allows highly visible issues to be addressed
before an international adjudication body.
27. Id. at 250.
28. In particular, we address the Court’s jurisprudence on the right to
life in Part VI of this Rejoinder. See infra text accompanying notes 88-93.
29. M
ELISH
, P
ROTECTING
, supra note 18, at 347 (emphasis added).
30. Melish correctly notes that the Commission has sought to apply arti-
cle 26, citing several cases. Melish, Rethinking, supra note 1, at 209-10. We
note this in our Hastings piece, though we question the wisdom of this line
of jurisprudence and its likelihood to withstand scrutiny by the Court. Since
the Hastings piece was published (and after the “obiter dictum” in Five Pen-
sioners), the Commission has ceased to present claims to the Court under
article 26. Id. at 268-70; see also Cavallaro & Schaffer, supra note 2.
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when presented squarely with alleged violations of article 26 of
the Convention, has failed or refused to find such violations.
31
While she seeks to minimize the import of these cases and to
mischaracterize an important passage in the Five Pensioners
case that flatly refuses to entertain the article 26 claims of peti-
tioners and amici, Melish fails to convince the reader that her
current understanding of ESC rights should be adopted by the
Court. That her understanding constitutes the Court’s actual
vision is even further afield.
32
In Five Pensioners, as Melish notes, the Commission, peti-
tioners, and amici all specifically requested a determination re-
garding violation of article 26. Their combined arguments al-
lege violations of this article with respect to the petitioners
31. See Melish, Rethinking, supra note 1, at 267 n.266.
32. Melish’s misconstruction of the import of the Court’s jurisprudence
on article 26 affects her interpretation of the competence of the Commis-
sion as well, causing her to discount Commission determinations that reject
her view as outliers. It is settled Commission practice that when violations
are alleged of rights protected by both the Convention and the Declaration,
the Commission will apply the Convention. However, the Commission may,
and does, consider violations of the Convention and the Declaration when
rights not protected by the Convention are violated. As the Commission
wrote in Menendez, Caride et al. v. Argentina, “[t]he rights to the preservation
of health and to well-being (Article XI) and to social security in relation with
the duty to work and contribute to social security (Articles XVI, XXXV and
XXXVII) contained in the Declaration are not specifically protected by the
Convention . . . . Thus the Commission will also examine the petitioners’
allegations on violations of the Declaration.” Menendez, Caride et al. V. Ar-
gentina, Case No. 11.670, Inter-Am. C H.R., Report No. 03/01, OEA/Ser.L/
V/II.111, doc. 20 rev. ¶ 42 (2001). Other cases have issued similar holdings.
See, e.g., Clotilde Perrone and Preckel v. Argentina, Case 11.738, Inter-Am.
C.H.R., Report No. 67/98, OEA/Ser.L/V/II.106, doc. 3 rev. ¶ 31-33 (1999).
While Melish cites these cases, she considers the exception permitting juris-
diction over the Convention and Declaration misdirected. See Melish, Re-
thinking, supra note 1, at 213. We suggest that Commission precedents in
this regard are, at best, ambiguous, and support litigation of hybrid cases,
that is, ones that allege violations of civil and political rights (under the Con-
vention) and ESC rights (under the Declaration). See, e.g., Cavallaro &
Schaffer, supra note 2, at 271. Regarding the ambiguity of the jurisprudence
of the Commission on article 26, see Naranjo Cardenas et al. v. Venezuela,
Petition 667/01, Inter-Am. C.H.R., Report No. 69/04, OEA/Ser.L/V/
II.122, doc. 5 rev. (2005) (reasoned vote of Clare K. Roberts, President, dis-
senting from finding of admissibility in accordance with holding in Five Pen-
sioners), available at http://www.cidh.org.
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themselves
33
as well as a breach of the state’s obligation to
realize the right to social security progressively over broader
classes of Peruvians.
34
The Court responded to these argu-
ments in the following terms:
147. Economic, social and cultural rights have both
an individual and a collective dimension. This Court
considers that their progressive development, about
which the United Nations Committee on Economic,
Social and Cultural Rights has already ruled, should
be measured in function of the growing coverage of
economic, social and cultural rights in general, and
of the right to social security and to a pension in par-
ticular, o[ver] the entire population, bearing in mind
the imperatives of social equity, and not in function
of the circumstances of a very limited group of pen-
sioners, who do not necessarily represent the prevail-
ing situation.
148. It is evident that this is what is occurring in the
instant case; therefore, the Court considers that it is
in order to reject the request to rule on the progres-
sive development of economic, social and cultural
rights in Peru, in the context of this case.
35
33. In this regard, the Court observed, “[t]he Inter-American Commis-
sion and the representatives of the alleged victims and their next of kin al-
leged that Article 26 of the American Convention had been violated be-
cause, by reducing the amount of the pensions of the alleged victims, the
State failed to comply with its obligation to progressively develop their eco-
nomic, social and cultural rights and, in particular, did not ensure the pro-
gressive development of their right to a pension.” Inter-Am. Court H.R., Five
Pensioners Case, Judgment of February 28, 2003, Series C, No. 98, para. 146
[hereinafter Five Pensioners].
34. This latter tendency is, for instance, apparent in the brief presented
by amici, which analyzes the general duty of non-regressivity and asserts that
Peru violated article 26 by unjustifiably reducing social security benefits for
all “individuals who have been adversely affected by the measure [that re-
duced the pensions].” Brief amicus curiae of the Centro de Estudios Legales
y Sociales (CELS) and Professor Christian Courtis, Case No. 12.034, Benve-
nuto Torres, Carlos y Otros c. Republica de Peru, Inter-Am. Ct. H.R., at 17,
available at http://www.cels.org.ar/Site_cels/documentos/amicus_ben
venuto_peru.pdf. Authors’ translation. Original text reads: las personas a las
que ha perjudicado la medida.
35. Five Pensioners at ¶¶ 147-48.
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Melish seeks in two ways to avoid the conclusion that this
rejection of the “article 26 approach” undermines her argu-
ment. First, she mischaracterizes the role that this passage
plays in the Court’s opinion, and second, she misinterprets the
passage’s content in a self-contradictory attempt to reconcile it
with her preferred view of how ESC litigation ought to pro-
ceed in the inter-American system. Neither attempt is persua-
sive.
Melish initially questions the importance of this section of
the Court’s decision by labeling it as obiter dictum.
36
How-
ever, given that the section is the basis of the Court’s decision
not to consider article 26 violations against either the named
pensioners or any broader class, Melish’s assessment is subject
to serious doubt.
Further, one must consider the relevant context when an-
alyzing the import of the language in Inter-American Court
opinions. In Anglo-American law, the holding of a case is lim-
ited to those elements of a court’s sentence necessary for
resolving the dispute. Because all other language may be con-
sidered obiter dictum, courts in this tradition ordinarily re-
frain from commenting on matters beyond the issues essential
to judgment. By contrast in the inter-American system—a hy-
brid of common and civil law—the Inter-American Court reg-
ularly provides crucial interpretation of the system’s instru-
ments well beyond what is necessary to resolve the litigation
before the parties. This has been the practice of the Court
since its first contentious case. In that matter, Velasquez Rodrı-
guez v. Honduras,
37
two of the Court’s most important determi-
nations could theoretically be construed as unnecessary. The
Court’s analysis of exceptions to the rule of exhaustion of do-
mestic remedies in that case, cited scores of times within the
system and beyond, might be deemed largely unnecessary in
light of the repeated use of specific domestic remedies made
by the victim’s heirs. More importantly, the Court could have
omitted entirely the most important analysis and holding in
Velasquez Rodrıguez: its acceptance of the Commission’s theory
36. Obiter dictum has been defined as “[words of an opinion] entirely
unnecessary for the decision of the case.” Noel v. Olds, 138 F.2d 581, 586
(D.C. Cir. 1943).
37. See Velasquez Rodrıguez v. Honduras, Inter-Am. Ct. H.R. (ser. C) No.
4 (July 29, 1988).
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of state responsibility for acts of third parties through proof of
a pattern of forced disappearances and the inclusion of Man-
fredo Velasquez Rodrıguez in that pattern. Indeed, it could
have found the same violations based solely on its express find-
ing that state agents were directly responsible for the disappear-
ance of the victim.
38
At a minimum, then, the Court’s observa-
tion regarding the viability of direct access via article 26 in Five
Pensioners should place petitioners on notice that invoking this
article to litigate ESC rights is a suspect option.
Perhaps aware that litigants familiar with inter-American
jurisprudence are unlikely to accept her classification of this
passage as mere obiter dictum, Melish seeks to save her argu-
ment by asserting that the Five Pensioners ruling is reconcilable
with direct ESC litigation within the framework of her four
quadrant theory. In this regard, she asserts in this journal that
“the Court’s dictum should be understood as rejecting only one
particular type of article 26 claim: claims on which state respon-
sibility for substantive rights infringement rests on alleged
breach of quadrant 4, rather than quadrant 1, duties.”
39
How-
ever, far from suggesting that there are two “types” of article
26 claims—one justiciable and the other not—the more natu-
ral reading of this passage supports the view that article 26
does not recognize individual, immediately-justiciable rights.
As a consequence, the article 26 approach remains unpromis-
ing as a means of ESC litigation (precisely the view that we
adopt in Less as More).
40
38. On this point, the Court wrote:
The Court is convinced, and has so found, that the disappearance
of Manfredo Velasquez was carried out by agents who acted under
cover of public authority. However, even had that fact not been
proven, the failure of the State apparatus to act, which is clearly
proven, is a failure on the part of Honduras to fulfill the duties it
assumed under article 1 (1) of the Convention, which obligated it
to ensure Manfredo Velasquez the free and full exercise of his
human rights.
Id. at ¶ 182.
39. Melish, Rethinking, supra note 1, at 268 (emphasis in original).
40. An additional argument in support of our interpretation of article 26
involves the plain language of the text of the American Convention itself.
That instrument establishes civil and political rights in articles 3 to 25. Each
of those articles is drafted in express terms that establish the particular right
with reference to the rights holder or in language that proscribes particular
state behavior. These articles typically employ phrases such as “everyone has
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Moreover, it is difficult to take seriously Melish’s current
position with respect to this passage, given that her past writ-
ings assert contradictory interpretations. Worth noting in this
regard is Melish’s evaluation of the possibility of employing ar-
ticle 26 as the basis for directly litigating ESC rights in an arti-
cle she drafted shortly after the Five Pensioners decision. In that
piece, while characterizing the relevant text as obiter dictum,
Melish wrote, “the Court effectively obliterated article 26 as a
repository for individually-protectable rights under the conten-
tious jurisdiction of the inter-American human rights or-
gans.”
41
This candid assessment undermines the credibility of
Melish’s current challenge to our view that the Court has pro-
vided little basis for expecting direct access via article 26. Fur-
ther reinforcing the implausibility of Melish’s latest characteri-
zation of the Five Pensioners passage is another argument she
made in an earlier version of the piece that now appears in
this journal. There, Melish characterized the same Five Pen-
sioners passage as “plainly-erroneous” and so detrimental to the
article 26 approach that it must be “buried and forgotten” if
future ESC litigation is to take place according to her pre-
ferred model.
42
Melish’s constantly changing interpretation
of the Five Pensioners language, rather than advancing her (cur-
rent) thesis, instead undermines her credibility.
Equally revealing of the unsustainable nature of Melish’s
position is her novel interpretation of several subsequent cases
in which the Court failed to find violations of article 26 alleged
by litigants. Melish manages to construe these cases as support
for her position—arguing that the Court’s failure to cite Five
Pensioners when refusing to recognize these claims establishes
that the assessment of article 26 claims in Five Pensioners consti-
the right” and “every person has the right” when describing the right from
the perspective of the rights holder, and “no one shall be” when proscribing
state conduct. Such language is conspicuously absent from the text of article
26, which provides only that states “undertake to adopt measures . . . with a
view to achieving progressively” the realization of ESC rights for their popu-
lations. American Convention on Human Rights, art. 26, Nov. 22, 1969,
1144 U.N.T.S. 123.
41. Tara J. Melish, A Pyrrhic Victory for Peru’s Pensioners: Pensions, Property
and the Prevention of Progressivity, 1 J
URIDICA
51, 56-57 (2005).
42. Tara J. Melish, Rethinking the “Less as More” Thesis: Supranational Liti-
gation of Economic, Social and Cultural Rights in the Americas, N.Y.U. Center for
Human Rights and Global Justice Working Paper Series No. 2 (2006), at 50
(version available online May 2006-January 2007; on file with authors).
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tutes mere obiter dictum.
43
The less strained and more con-
vincing explanation would be that the judges in Five Pensioners
believed that article 26 simply does not provide the basis for
direct access to the Court, a belief that a majority of the jus-
tices apparently continue to hold.
44
It is also worth noting that
the Commission appears to hold the same view, based on its
choice not to allege violations of article 26 to the Court
45
after
the decision in Five Pensioners.
Melish further critiques our analysis
46
of article 26 in light
of article 19 of the San Salvador Protocol. Article 19 expressly
limits access to the inter-American system’s petitions process to
articles 8(a) and 13 of the Protocol (which protect rights to
labor association and education, respectively). We suggested
that this article, in conjunction with the terms of the American
Convention, leads to the conclusion that the American states
drafting those two instruments did not intend to authorize the
Court to adjudicate petitions alleging ESC rights abuse
through article 26. Melish counters by arguing that the exis-
43. She writes in this regard: “The Court’s manifest discomfort with its
article 26 dictum has led it not only to avoid extending or even referring to it
again in any subsequent case but also, unfortunately—given the lack of a
clear vision for resolving the quadrant 1/quadrant 4 difficulty—pronounc-
ing on article 26 at all.” Melish, Rethinking, supra note 1, at 267 n.266. The
four subsequent cases cited by Melish in which the Court declined the op-
portunity to find a violation of article 26 are: Case of Children’s Rehabilita-
tion v. Paraguay, Inter-Am. Ct. H.R. (ser. C) No. 112, ¶ 255 (Sept. 2, 2004);
Yakye Axa Indigenous Community of the Enxet-Lengua People v. Paraguay,
Petition 12.313, Inter-Am. C.H.R., Report No. 2/02, OEA/Ser.L/V/II.117,
doc. 1 rev. 1, ¶¶ 11-12 (2003); Yean and Bosico Case v. Dominican Republic,
Inter-Am. Ct. H.R. (ser. C) No. 130 (Sep. 8, 2005); Acevedo Jaramillo et al.
v. Peru, Inter-Am. Ct. H.R. (ser. C) No. 144, at 86 (Feb. 7, 2006).
44. We recognize, as the Court has, that article 26 may be relevant to
interpreting other rights or in crafting remedies. See, e.g., Five Pensioners,
supra note 34, at 62. In this regard, other instruments, such as the American
Declaration, that may not serve as the basis for a claim to the Court are also
considered by this body in interpreting and applying those instruments
which provide access.
45. In this regard, see Acevedo Jaramillo et al. v. Peru, Inter-Am. Ct. H.R.
(ser. C) No. 144, at 86 (Feb. 7, 2006). In that case concerning violation of
among others, labor rights, “the Commission did not allege that article 26 of
the Convention had been violated.” Authors’ translation. Original text
reads: la Comision no alego que se hubiera violado el artıculo 26 de la Convencion.
46. Melish also devotes attention to the travaux preparatoires, challenging
the research of Matthew Craven in this regard, which is cited in our Hastings
piece. See Melish, Rethinking, supra note 1, at 225-27.
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tence of two other treaties in the inter-American system that
specify rights beyond the terms of the American Convention,
and which do not grant access to the petitions process for
some of those rights, proves that our analysis is misguided.
47
What Melish fails to consider, however, is the relevant
context in which each treaty was drafted and approved. To
begin, we emphasize that the San Salvador Protocol, unlike
the treaties cited by Melish, is a protocol to the American Con-
vention on Human Rights and thus maintains a special rela-
tionship with it.
48
The full name of the instrument is the Addi-
tional Protocol to the American Convention on Human Rights
in the Area of Economic, Social and Cultural Rights. In this
context, Melish’s citation of other treaties in the inter-Ameri-
can system is not relevant to a discussion of the interpretation
of the American Convention in conjunction with its additional
protocol. Further, in the case of the San Salvador Protocol,
the background understanding of the drafters regarding ESC
rights and the American Convention was that those rights
could not be litigated through article 26 of the Convention.
This background understanding was based on the fact that ar-
ticle 26 had never been employed successfully to defend ESC
rights through the petitions process. Based on this under-
standing, the decision by the states drafting the San Salvador
Protocol to grant access to the petitions process (potentially
leading to the Inter-American Court) for violations of articles
8(a) and 13 should be read to reflect the understanding by
American states at the time in two respects: First, the Ameri-
can Convention, through article 26, at least at the time, did
not provide direct access to the Commission and Court and,
second, states ratifying the San Salvador Protocol could be
made to answer to individual petitions only for violations of
articles 8(a) and 13. Other, strained interpretations are possi-
ble, but less convincing.
47. See id. at 213-15.
48. Organization of American States, Additional Protocol to the Ameri-
can Convention on Human Rights in the Area of Economic, Social and Cul-
tural Rights, November 17, 1988, O.A.S.T.S No. 69.
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B. Possible Hostile State Responses to the Direct
Application of Article 26
Throughout her piece, Melish questions our concern that
a Court decision applying article 26 directly might meet with
state resistance. To frame her critique, Melish posits a theory
of state resistance apparently drawn from democratic theory
and the role of courts in domestic contexts.
49
Her focus on
the proper role of courts, however, is largely inappropriate to
the analysis of the conditions that lead states to react nega-
tively to measures taken by supranational bodies. Melish sug-
gests that courts risk undermining their legitimacy by overstep-
ping their appropriate role.
50
But legitimacy, in the terms that
Melish proposes, cannot explain the case studies on hostile re-
sponses that we included in Less as More. For example, the
Court’s reasoning regarding the application of the death pen-
alty in Trinidad and Tobago is firmly grounded in law and did
not overstep the Court’s legitimate judicial function. Yet Trin-
idad and Tobago’s response to that holding was decidedly hos-
tile: It led to that country’s withdrawal from the inter-Ameri-
can system.
51
Legal scholar Lawrence Helfer’s work is relevant in this
context. In a 2002 article investigating the phenomenon of
Caribbean rejection of supranational efforts to restrict applica-
tion of the death penalty, Helfer explains the phenomenon of
hostile state reaction to supranational decisions in terms of
overlegalization. While one variant of overlegalization involves
expansion of the initial terms of a treaty (by expansion of a
supranational body’s jurisdiction, for example), another vari-
ant “occurs where opportunities to detect, expose, or remedy
noncompliance increase over time, forcing states closer to the
commitments formally enshrined in a treaty’s text.”
52
Helfer
49. See, Melish, Rethinking, supra note 1, at 287-92.
50. See id. at 290-92.
51. See Cavallaro & Schaffer, supra note 2, at 249-50.
R
52. Laurence R. Helfer, Overlegalizing Human Rights: International Rela-
tions Theory and the Commonwealth Caribbean Backlash against Human Rights Re-
gimes, 102 C
OLUM
. L. R
EV
. 1832, 1856 (2002). In this regard, the authors
recognize a debt to Prof. Helfer for his contribution to the debate through
development of the concept and operation of overlegalization. This term,
rather than “legitimacy” better explains the phenomenon that we sought to
address in the Hastings article and which Melish purports to attack. The
concept of overlegalization also serves to avoid confusion created by Melish’s
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argues that this form of overlegalization may be prevalent in
states outside of Europe in which treaty compliance is limited.
Overlegalization, Helfer argues, may lead states to reject supra-
national engagement. On this theory of overlegalization, a
Court interpretation of the scope of article 26 that would per-
mit direct access for ESC violations could constitute either
broadening of the jurisdiction, or expansion of the “opportu-
nities to detect, expose or remedy noncompliance”—in either
case, results likely to produce hostile state reaction. Again, in
both cases, a given state’s hostility would flow primarily from
its belief that the supranational body is engaging in more or a
different kind of oversight than the state initially accepted. In
this model, state perception is more important than the cor-
rectness (to the extent that this may be judged objectively) of
the supranational decision. If, as we argue, states understand
the terms of the American Convention and the Court’s rulings
in Five Pensioners and subsequent cases as limits on direct ac-
cess for ESC litigation via article 26, a broader interpretation
of that article by the Court would constitute overlegalization,
as Helfer explains the phenomenon.
Melish’s critique further fails to appreciate the very deli-
cate balance that exists in the inter-American system. State
pressure to reduce the reach and resources of the Commission
and Court constitute a permanent element of the context in
which cases are litigated and decided.
53
In addition to re-
nouncing acceptance of the Court’s jurisdiction or withdraw-
ing ratification of the American Convention, a state may also
publicly refuse to implement a Court sentence or simply fail to
apply its orders. Recognizing these factors, along with the sys-
tem’s highly limited resources and capacity to resolve cases,
54
is essential to any realistic approach to litigation in the system.
Such an approach must seek to work within the established
limits of the system (or to move them, incrementally) and to
engage a range of social forces to avoid placing a controversial
Court sentence at the center of the advocacy strategy.
55
inappropriate application of domestic institutional political legitimacy the-
ory to state responses to supranational decisions.
53. See Cavallaro & Schaffer, supra note 2, at 220 n.2.
R
54. We discuss this at some length in the Hastings piece. See id., passim.
55. We suggest that in those instances in which state opposition to Court
sentences has been high for the reasons outlined above, states have been
able to focus on decisions of the Court as the centerpiece of conflict. That
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Melish is correct that state rejection of Court sentences is
not specific to litigation of ESC rights; indeed our case studies
demonstrate this. She attacks us, however, for failing to pro-
vide direct evidence to support our contention.
56
Our conten-
tion, though, is that a Court sentence based exclusively on arti-
cle 26 would likely provoke a strong, negative reaction from
the relevant state. Because there have been no Court
sentences applying article 26 directly, we cannot cite state reac-
tions to such sentences; instead, we analogize based on state
response to Court determinations on civil and political rights,
as well as state perception of the legitimacy of supranational
oversight of ESC rights as manifested elsewhere.
57
Seeking to support her critique of our argument that ap-
plication of article 26 to grant access to the Court for ESC
claims might provoke negative state response, Melish dedicates
several pages to demonstrating that domestic courts and legis-
latures in the Americas have embraced ESC rights. Yet the ex-
tent of domestic constitutional acceptance of human rights, in-
cluding ESC rights by and within Latin American domestic legal
is, by focusing on a relatively isolated Court decision, states were able to
frame the conflict (whether to apply the death penalty in Trinidad and To-
bago; whether to accept supranational control of the battle against terrorism
in Peru) in terms of national sovereignty vs. supranational intervention in
domestic affairs. State efforts to delegitimate the determinations of the in-
ter-American system are more likely to succeed when those decisions lack
sufficient grounding or involve extreme interpretations of the system’s in-
struments. The combination of isolated supranational litigation efforts to-
gether with relatively weak legal support is what most concerned us in Less as
More and continues to concern us now.
56. From here, Melish proceeds to devote several pages to summarizing
domestic decisions on ESC rights in the Americas, a matter not relevant to our
position. See Melish, Rethinking, supra note 1, at 280-83.
57. Melish argues that state response to reference to ESC rights in
friendly settlements and precautionary measures ordered by the Commis-
sion and, in a few instances, in provisional measures by the Court, under-
mines our concerns about possible hostile responses to a Court ruling on
ESC rights through article 26. See id. at 283-87. These instances are simply
not relevant. First, we do not question the Commission’s authority to ad-
dress ESC issues by applying the Declaration. And voluntary acceptance of
friendly settlements tells us little about state reaction to Court judgments
that go beyond the bounds of their jurisdictional scope. Second, and more
importantly, precautionary measures and provisional measures, unlike
sentences in contentious cases, do not involve final determinations of state
responsibility for rights abuse, and instead seek to protect persons at risk
through state cooperation.
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structures, is a point that we not only do not challenge, but
affirmatively recognize in our Hastings piece.
58
The question
we raise concerns potential state response to supranational de-
cisions that go beyond the text of the instruments establishing
jurisdiction. That Latin American states accept domestic judi-
cial oversight of ESC rights does not speak to their potential
resistance to supranational exercise of jurisdiction over these
issues without clear, conventional basis. If, as we argue, states
understand the treaties and jurisprudence of the Inter-Ameri-
can Court as precluding direct article 26 access to adjudicate
ESC rights, then they are likely to react much as they would
were the Court to overstep its competence in another area, as
for instance in an exercise of jurisdiction over a state that had
not yet ratified the American Convention.
C. The Utility—or Lack Thereof—of the Article 26 Approach
Melish herself has recognized that the direct approach is
largely unnecessary to achieve practical gains. In her guide to
litigating ESC rights in the inter-American system, Melish com-
pared the “article 26 approach” with the “integration ap-
proach,” the latter referring to framing the same situations of
abuse in terms of violations of the civil and political rights pro-
tected in articles 3 to 25 of the American Convention:
As a practical matter, virtually identical results can
generally be achieved using the “article 26 approach”
and the “integration approach.” . . . [A]ll of the
“rights implicit in the OAS Charter” can, in most
cases, be protected through articles 3-25 (using the
integration approach). A violation of the right to
health, for example, might be alleged just as easily
under Convention article 5 (personal integrity) as it
could be under Convention article 26 (“the rights im-
plicit in the OAS Charter”). The two approaches are
thus, in many ways, substitutes for one another.
59
58. See Cavallaro & Schaffer, supra note 2, at 223 n.9, 233 n.48.
R
59. See M
ELISH
, P
ROTECTING
, supra note 18, at 346. In her piece in this
edition, Melish reiterates this principle, noting, “many of the norms in-
cluded in Chapter II—formally entitled ‘Civil and Political Rights’—also ex-
pressly protect rights appropriately understood as economic, social, or cul-
tural . . . [such as] inviolability of the home, freedom from compulsory la-
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This “integration approach” squares with what we term an
elements approach, that is, one that seeks to vindicate ESC ele-
ments inherent in civil and political rights through broad in-
terpretations of the latter set of rights. Melish thus acknowl-
edges that such an elements approach will achieve “virtually
identical results” as the article 26 approach in ESC litigation.
Why, then, insist on article 26? Melish’s current preference
for framing violations in terms of article 26 appears to flow
from a focus on promoting the jurisprudential development
of ESC rights themselves, rather than advancing social justice
by achieving concrete results in ESC-related cases.
60
While ad-
vancing supranational justiciability of ESC rights may be valua-
ble at some level, to the extent that it conflicts with advancing
the work of social movements and promoting social justice, we
contend—as we did in Less as More—that the latter concerns
must be given priority. Melish purports to accept our argu-
ment that litigators must work closely with social movements
and seek to advance the agendas of these groups, but, as we
explain further below, her suggested approach favors de-
tached jurisprudential advances at the expense of social jus-
tice.
V. L
ISTENING TO
S
OCIAL
M
OVEMENTS AND
C
IVIL
S
OCIETY
Much of Melish’s misunderstanding of our argument
stems from her failure to appreciate our conception of the
role of social movements, civil society, and media advocacy in
developing campaigns to foster social justice. Melish purports
to accept the importance of working with social movements
and civil society to advance this goal.
61
As she writes:
bor, freedom of labor association, and the right to property.” Melish,
Rethinking, supra note 1, at 221.
60. Of course, to the extent that promotion of ESC rights itself advances
social justice, this might constitute a separate justification for such framing.
Where there is tension, however, we favor social justice over jurisprudential
expansion. See id. at 181-82.
61. Her acceptance of this position is tempered in other parts of her
piece. Thus, she asserts that we “misidentify the proper forum for generally
‘promoting social justice’ in the regional human rights system . . . [because]
the Commission and Court may not legitimately assume that broad under-
taking through their adjudicatory competence.” Id. at 304. Here, Melish
makes two mistakes. First, she discourages practitioners from employing the
contentious jurisdiction of the Commission and Court to promote social jus-
tice, perhaps the most serious error in Melish’s argument for her four quad-
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Cavallaro and Schaffer’s . . . insistence on the impera-
tive of a more concerted focus on practical on-the-
ground enforcement and implementation of supra-
national decisions is firmly supported. Indeed, that
litigation—whatever its focus—should ideally always
be accompanied by social movements, local-level fol-
low-up, vigorous media advocacy, and national and
international pressure campaigns is unquestiona-
ble.
62
We do not contend that litigation ought to be merely ac-
companied by social movements, media advocacy, and other
forms of domestic and international pressure.
63
This phras-
ing, and Melish’s implicit understanding of “accompan[y]”
suggests that litigation should drive the advocacy strategy and
that other elements should support it. We argue that the re-
verse is true. That is, broader advocacy campaigns may in-
clude litigation in the inter-American system, as appropriate,
but supranational litigation preferences should not impose
limits on advocacy for social justice. Social justice advocacy
strategies, however, may lead to restrictions or modifications
of methods of litigation.
Melish thus fails to grasp fully that the relationship be-
tween litigation and other strategies will have real conse-
rant theory. Second, she misunderstands our arguments. We do not urge
the Commission and Court to issue sweeping verdicts on the promotion of
social justice. Rather, we urge them to resolve cases in accordance with their
caselaw. We do, however, urge practitioners to think creatively about the
system and ways to employ it jointly with other forms of activism and media
pressure to advance social justice. That is, we call on petitioners to work with
social movements to frame cases in ways that raise vital social issues. By so
doing, petitioners may leverage litigation before the system (not just final
determinations, but the ongoing litigation itself) to increase awareness and
provide a moral compass for broader campaigns.
62. Id. at 341.
63. We meant our use of the term “accompany” in the Hastings piece to
refer to integrated strategies in which supranational litigation plays a role, as
opposed to strategies that privilege litigation and engage other methods of
advocacy as secondary, “accompanying” elements. In Less as More, for exam-
ple, we wrote, “[e]xperience demonstrates that international litigation not
accompanied by parallel, coordinated campaigns by social movements and/
or the media is unlikely to produce effective results. In light of this, we un-
derscore the need for supranational litigators to avoid taking the lead on
strategic decision-making regarding the use of the Inter-American system.”
Cavallaro & Schaffer, supra note 2, at 275.
R
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quences for the nature of petitions submitted to the system as
well as the way they are framed and litigated. In practice, so-
cial movements are often more interested in the Court as an
avenue for raising the profile of particular agendas rather than
as a forum in which the justiciability of ESC rights may be ad-
vanced. Moreover, in light of the extremely limited access to
the Court in numerical terms, these two objectives often come
into conflict. As we stressed in our Hastings piece, the Com-
mission and Court adjudicate a handful of cases per year. The
Court, for example, has failed to address even an average of
one case per country per year since its inception. Since 1979,
eighty-seven contentious cases have been presented to the
Court, leading to 162 determinations; the Court has resolved
an additional seventy-two requests for precautionary measures,
and has issued nineteen advisory opinions.
64
Taken over the
twenty-seven years of its existence, this yields an average of just
over three contentious cases per year. Even if one begins the
count in 1986, the year the first contentious cases were for-
warded to the Court, one finds an average of just four such
cases per year. While these numbers have increased in recent
years, particularly after the reforms of 2001, the likelihood that
a case will be brought to the Court in a given year against any
particular country are less than fifty percent. Based on these
severe limits, we argue that petitioners must rethink their un-
derstanding of the system. With such remarkable limits on its
access, the system cannot reasonably be viewed as capable of
responding to every injustice in the Americas.
65
Instead, it
should be seen as a tool that must be used sparingly to magnify
a very, very limited universe of cases. Which universe of cases,
we argue, is the fundamental question. If framed intelligently,
litigation before the system may provide opportunities for
thoughtful practitioners to promote social justice more
broadly. The hypothetical cases in the Hastings piece seek to
identify areas in which litigation may serve to raise the profile
64. Inter-Am. Ct. H.R, Jurisprudencia, available at http://www.corteidh.or.
cr/ (last visited Jan. 28, 2007).
65. We cannot underscore this point enough. Our analysis of litigation
strategies is entirely contextual. If the inter-American system were expanded
and were provided with greater resources and state support, we would sup-
port expansion of litigation of all types. However, given that very, very few
cases are able to proceed to the Court, we argue for greater care in selecting
cases to be petitioned.
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of vital areas of social injustice in Latin America. The bottom
line is very often one that involves real tradeoffs. Should the
one case in any given year that the Court addresses from Ecua-
dor focus on extending the justiciability of protections against
forced eviction or on the killing of an indigenous leader seek-
ing control of resources on traditional lands? Should the one
case likely to proceed to the Court against Brazil in a given
year address the concerns of persons with mental health issues,
through the prism of a patient beaten to death in a closed
mental hospital, or on efforts to encourage the Court to recog-
nize an article 26 claim to ESC rights? Admittedly, these ques-
tions are not presented in absolute terms to any individual pe-
titioner, but they flow directly from the extremely limited ca-
pacity of the system and, in particular, the Court.
If, as we argue, the main objective of supranational liti-
gants in the inter-American system should be to place issues
before supranational bodies in conjunction with other advo-
cacy strategies, then it should not matter whether the Commis-
sion or Court addresses a particular question from the frame-
work of civil and political or ESC rights. More important, we
contend, is which issues are addressed and what broader ef-
forts are included in the advocacy campaign. If the civil and
political rights frame offers greater opportunity for advocacy
and promotion of change, then this frame, rather than the
ESC frame, should be given priority.
66
It is precisely our focus on the real world impact of cases,
jointly with our observations about the instruments and juris-
prudence of the system (rather than idealized theories about
how ESC rights ought to be litigated), that led us to identify
areas in which deploying the inter-American system could ad-
vance social justice in the Americas. The hypothetical cases
that we present, therefore, seek to demonstrate areas in which
social justice movements might promote their agendas
through litigation; each hypothetical case identifies a possible
66. However, if the objective of accessing the system is to promote the
justiciability of ESC rights—as it appears Melish believes—then one’s pre-
ferred litigation strategies will necessarily be different. That is, one will seek
to ensure that particular types of claims involving particular rights progress
through the system, with less regard for whether these cases are likely to
produce impact on the ground. See Melish, Rethinking, supra note 1, at 181-
82.
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point of entry for practitioners to engage the inter-American
system.
Note that these thumbnail sketches, from which petition-
ers might seek to develop test cases, are presented in precisely
this fashion—as situations of social injustice within which a
case might be framed to promote and provoke societal re-
sponses. Each hypothetical case takes up less than a single
page of text in the Hastings piece and none purports to estab-
lish all the elements necessary for a case to be admitted and
processed by the inter-American system. Before filing a peti-
tion before the Commission, a petitioner would, of course,
have to ensure compliance with the system’s requirements for
filing cases.
67
In this regard, Melish dedicates a great deal of
space to finding gaps in the hypotheticals’ fulfillment of cer-
tain admissibility or justiciability requirements. However, her
critiques are unwarranted given that the hypothetical cases do
not purport to present complete petitions, ready for litigation.
Rather, the hypotheticals represent areas of profound social
injustice that might be cognizable and reviewable by the inter-
American human rights system if framed in accordance with
the rules and procedures of the system.
A. Corumbiara and Eldorado dos Carajas:
Working with Social Movements
Melish’s analysis of the Corumbiara case demonstrates
her failure to understand fully that advocacy strategies do not
begin and end with litigation before the inter-American sys-
tem, as well as her failure to see that advocacy strategies that
do not place the system at their center often demonstrate
greater promise to promote social justice.
Melish chastises the litigants and the Commission for fo-
cusing in Corumbiara on the killings and instances of torture.
From her vantage point, Melish sees a missed opportunity, one
67. Here, we thank Melish for raising the ambiguity in some of the hypo-
thetical cases. To the extent the language of those cases suggests that a
broad, poorly defined claim would be admissible merely by invoking a civil
or political right, let us correct that misunderstanding now. Further, when
we refer to the potentially revolutionary impact that a Court determination
might have, we seek to refer to the impact that a determination in a specific
case, litigated within the constraints of the system, would have in conjunc-
tion with broad advocacy jointly with social movements, civil society, and the
media. Id. at 181.
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in which her vision of ESC litigation might have been ad-
vanced. In Brazil at the time, the vision of those working with
landless and human rights leaders was quite different.
68
The
extreme violence employed by the police, particularly after
seizing control of the Santa Elina ranch, was an issue that
helped to catapult and maintain the land reform debate—in
its many dimensions—to national prominence.
The choice to emphasize conflicts involving extreme vio-
lence was important for the broader land reform strategy. A
similar strategic decision was made the following year when
police attacked a group of landless squatters pressing for ex-
propriation in Para state. In that incident, the squatters were
occupying the main road connecting the south of Para state
with the capital, Belem, when military police opened fire on
them and attacked the squatters with hoes and machetes, kill-
ing nineteen and wounding scores of others.
69
In both cases, the advocacy agenda focused on highlight-
ing the violations of the right to life in an effort to mobilize
domestic and international public opinion against the use of
police violence to resolve land conflicts. This, rather than a
pronouncement by the inter-American system on forced evic-
tions, was the main goal of the litigation strategy. The landless
movement, most probably Latin America’s best developed so-
cial movement, deployed a range of strategies designed to end
forced evictions and to bring about change in land tenure pat-
terns. These included pressure for legislative change, litiga-
tion within Brazil, and, primarily, land occupations. Because
the last element was so central to its overall strategy, reducing
the threat of future massacres by police was vital to the landless
movement and far more important than the development of
supranational doctrine unlikely to produce significant effects
within Brazil.
Melish incorrectly assumes that because the case before
the Inter-American Commission did not focus on litigating
ESC rights that these issues were not part of the broader advo-
68. James L. Cavallaro, at the time, director of CEJIL/BRASIL and Brazil
office director of Human Rights Watch, was one of several petitioners in
both the Corumbiara case and in the Eldorado dos Carajas matter.
69. Admissibility El Dorado Dos Carajas, Petition no. 11.820, Inter-Am.
C.H.R., Report No. 4/03, available at http://www.cidh.org/annualrep/2003
eng/Brasil.11820.htm.
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cacy campaign. For one, the submissions to the Commission
focused on the context of gross inequality in which the killings
occurred. During the time period framed by the initial
Corumbiara case (October 1995), the Eldorado dos Carajas
massacre (April 1996), the filing in that matter, and the litiga-
tion of the two cases (over the next several years), those en-
gaged in promoting land reform routinely addressed the un-
derlying ESC claims in a range of fora (including in domestic
courts, the Brazilian parliament, and international debates).
Melish chastises the petitioners in the Corumbiara case for not
expanding their claims to include forced eviction. But those
involved in the advocacy campaign did address the broader is-
sues of forced eviction, as well as questions related to land dis-
tribution, financing, and credit for land reform, even beyond
the scope of what could have been presented to the Inter-
American Commission.
70
Media sources as well, in their cover-
age of the Corumbiara matter, routinely analyzed the broader
context of land reform, squatter occupations, the demand for
land settlement, and respect for housing rights.
71
Interestingly, the record demonstrates the partial success
of this strategy. While land conflicts still continue to dominate
rural Brazil, incidents of multiple deaths caused by police fir-
ing at squatters virtually ceased after the Corumbiara and El-
dorado massacres. After the killings of twenty-eight people in
the Corumbiara and Eldorado incidents in a period of just
eight months, the number of people killed by police in rural
land conflicts decreased dramatically—likely in response to
this mobilization and joint strategy. Over the next four years,
police killed a total of eight civilians in this context. All but
one of the conflicts involved a single victim; the bloodiest
caused two
72
fatalities.
73
One of Brazil’s leading weekly
70. Mario Osava, Brazil: Fear of Social Unrest Revives Land Reform, IPS –
I
NTER
P
RESS
S
ERVICE
, Sept. 28, 1995; see Corumbiara: Deadly Eviction, T
IME
,
Aug. 28, 1995, at 8; Land Question Develops into Crisis: Military Fear Conflicts
May Lead to Guerrilla Violence, 1995 L
ATIN
A
MERICAN
W
KLY
. R
EP
. 447-48.
71. Mario Osava, Brazil, supra note 7; Corumbiara: Deadly Eviction, supra
note 70; Eleven Die in Land Conflict: Lula Claims Cardoso Has No Interest in
Agrarian Reform, 1995 L
ATIN
A
MERICAN
W
KLY
. R
EP
. 374-75; Diana Jean
Schemo, Brazilian Squatters Fall in Deadly Police Raid, N.Y. T
IMES
, Sept. 19,
1995, at A1.
72. It is possible to interpret this figure as three. According to CPT data,
military police and gunmen killed two civilians on March 2, 2001 in the mu-
nicipality of Confresa, state of Mato Grosso. Two days later, they killed an-
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magazines, IstoE, reported months after the Eldorado massacre
that the State Government in Para—the epicenter of Brazil’s
most violent rural clashes—expressly ordered its military po-
lice to avoid all situations that might lead to violent conflict
similar to that in the Eldorado massacre.
74
At the same time, while multiple killings by police in rural
conflicts practically ceased, land occupations intensified, lead-
ing to the settlement of hundreds of thousands of squatters.
75
According to official data, in relation to the preceding twenty-
five years, between 1995 and 1999 the average number of fami-
lies settled per year increased by all accounts. By some, the
surge was as much as five hundred percent.
76
According to
other civilian in the same municipality. It is unclear whether these should
be considered two separate conflicts. See C
OMISS ˜AO
P
ASTORAL DA
T
ERRA
,
C
ONFLITOS NO
C
AMPO
: B
RASIL
’97 10-11 (1998). After 2001, CPT stopped
including information on the identity of murder suspects.
73. Nevertheless, despite the reduction in the numbers of landless squat-
ters and protesters killed by police after Corumbiara and Eldorado dos
Carajas, rights groups in Brazil have documented an increase in other forms
of repression. For instance, according to Landless Movement (MST) data,
instances of arrests of landless peasants vastly increased in the years after
1996, suggesting a displacement in repressive techniques and highlighting
the continued need for advocacy related to civil and political rights that
would allow the landless movement to continue its land reform push. See