N a watershed case that could affect how
multinationals do business in developing countries, a federal
appeals court will consider on Tuesday whether the energy giant Unocal
should stand trial in connection with human rights abuses that the
government of Myanmar is accused of inflicting on villagers during
construction of a natural-gas pipeline.
The crucial question before the unusually large panel of 11
judges is whether to apply international legal standards that hold
parties responsible for aiding and abetting human rights abuses. The
case is in the United States Court of Appeals for the Ninth Circuit
in San Francisco.
The plaintiffs are a group of villagers from Tenasserim, a region
in southeastern Myanmar, the country once known as Burma. They say
Unocal paid the military to provide security for the project and
supported the government, which forced villagers to help build the
$1.2 billion pipeline in the 1990's and threatened those who refused
with rape and other atrocities. Unocal denies the accusations.
If the court allows the civil suit to go to a jury trial, "this
will raise the stakes for multinationals that do business with
repressive regimes," said William S. Dodge, an international law
professor at the Hastings College of the Law in San Francisco.
"There are plenty of repressive regimes around the world, and there
are plenty of multinationals that do business with them. The
question is, how far can a corporation like Unocal go in cooperating
with such a regime before the company bears some legal
responsibility?"
THE case is among a growing number based on the once-obscure
Alien Tort Claims Act, a 1789 law originally intended to help
prosecute international pirates in American courts. Since the early
1980's, it has been used to argue cases successfully against foreign
military and police personnel accused of human rights abuses. More
recently, human rights and labor groups have seized on it to do
battle with oil, mining and other multinational companies that work
with governments that they say engage in torture, genocide and
similar violations of international law.
There have been more than a dozen alien tort cases filed against
companies since the mid-1990's, but none have so far gone to a jury
trial. Some have been dismissed on procedural grounds, while others
are pending. The possibility of trials has raised concerns among
both corporations and the Bush administration over potentially
embarrassing testimony — and worry that a verdict could set a
precedent that encourages thousands of foreign plaintiffs to seek
damages for crimes committed by their own governments.
"You get a perfect storm of sympathetic plaintiffs, trial lawyers
and anti-globalization activists working together to bring these
suits," said William A. Reinsch, the president of the National
Foreign Trade Council, an industry group based in Washington. He
cites cases like one recently filed against dozens of companies that
did business in South Africa under apartheid. "It could be
disastrous for global trade," he added.
Though there has not been a single verdict against them,
companies are feeling the impact of the litigation, which they must
increasingly factor into investment decisions.
"It's causing companies to run away from situations like Burma,"
said Errol P. Mendes, a law professor at the University of Ottawa
and recently a co-author of "Global Governance, Economy and Law"
(Taylor & Francis), which details the impact of such lawsuits on
multinational companies.
He and others point to a variety of recent corporate decisions to
demur or pull back from projects in countries where governments have
been accused of human-rights abuses, including Nigeria, Indonesia
and Sudan, as well as Myanmar.
Although Unocal, based in El Segundo, Calif., continues to do
business in Myanmar, "this has created a great deal of uncertainty
about future investing," said Charles O. Strathman, its vice
president and chief legal officer. "It's not just the legal fees
involved; it's also very disruptive and a big time commitment."
The negative publicity from such cases may be even more costly.
Social-justice and environmental groups see the Unocal case as an
example of globalization gone bad, inspiring protests on college
campuses and campaigns to pressure school administrators to sell
Unocal stock.
"Whether these companies prevail in a court of law, they are
already losing in the court of public opinion," Professor Mendes
said. "Just the launching of these lawsuits has a huge impact on
companies' brand equity, which these days is their most important
asset."
The suits are just one way to try to bring pressure on companies.
In resolutions being put before corporate directors, shareholders
are calling for companies to pull out of projects implicated in
human-rights lawsuits. For example, after a shareholder resolution
and negative publicity from a pending human-rights lawsuit, Talisman
Energy in March sold its $770 million stake in an oil
development project in Sudan. It had been accused of assisting
Sudanese forces in an ethnic cleansing campaign against villagers
near its oil fields.
"There was shareholder fatigue" in the investment, said David W.
Mann, a senior manager for investor relations at Talisman, which is
based in Calgary, Alberta, and listed on the New York Stock
Exchange. He denied the suit's accusations.
Although a lawsuit filed against ChevronTexaco
by villagers in Ecuador was dismissed last year by a federal judge,
the company decided to end its oil development there last fall. The
case is now scheduled to be heard in an Ecuadorian court. Various
factors led to the decision to leave Ecuador, but the litigation
"was not a positive indicator to say this is a place we want to
continue to do business," said Edward B. Scott, vice president and
general counsel for the company's overseas division. The threat of
similar litigation, he said, "adds a further element of risk and
makes us less competitive."
SECURITY experts regard such statements as signs that
multinational companies based in the United States are increasingly
worried about their liability for acts committed by host
governments, which have long provided security and other services
for their oil, mining and other projects.
While corporate officials emphatically defend their human-rights
records overseas, "business leaders are getting very nervous about
these lawsuits," said Catherine J. Boggs, a lawyer at Baker &
McKensie in Chicago, who advises companies about security
arrangements with local governments. "Some think the best way to
deal with them is to try to repeal the law altogether, or at least
modify it."
To that end, pro-trade groups and the Justice Department filed
briefs in May in the Unocal case, arguing that the alien tort
statute had been misapplied by plaintiffs and that such lawsuits
could undermine American business interests and the war or
terrorism. The lawsuit bears "serious implications for our current
war against terrorism" and permits similar claims to be easily
asserted against allies in that war, an assistant attorney general,
Robert D. McCallum, wrote in the government's brief.
Despite increased pressure on judges to support the antiterrorism
effort, legal experts say it is unlikely that the court will move to
invalidate use of the alien tort statute in the Unocal case. Yet
even if it advances to a jury trial, it may be difficult to prove
that Unocal actively participated in abuse by Myanmar. "It's not to
say that these acts weren't horrible, but the aiding and abetting by
Unocal is not obvious," said Anthony J. Sebok, a professor at the
Brooklyn Law School who specializes in tort law. "These are
difficult allegations to prove because they have to show that Unocal
knew precisely how its aid was being used to commit human rights
abuses."
Yet company officials worry that the aiding-and-abetting
standard, which can include "knowing practical assistance,
encouragement or moral support" to the perpetrator of the abuse, is
so broad that practically any involvement with the government of
Myanmar could be misconstrued as complicity. "The investment itself
could be considered moral support or assistance," said M. Randall
Oppenheimer, a lawyer at O'Melveny & Myers in Los Angeles, who
represents Unocal in the case. "It seems fundamentally unfair to
hold people liable for a situation that they don't control."
The plaintiffs argue, however, that Unocal was well aware of the
military's poor human rights record in Myanmar and should have known
that its security forces would engage in brutal practices, like
forcing villagers who lived in the path of the pipeline not only to
relocate, but to help build it. Their lawyers cite a 1992 report by
consultants who advised the company on the risks of doing business
with the government of Myanmar. The report warned that the military
"habitually uses forced labor to construct roads."
A lawyer who represents the plaintiffs, Katharine J. Redford of
EarthRights International in Washington, said: "Their own
consultants told them they could be implicated as a willing partner
in the abuse. That's exactly our allegation."
EVEN if the suit fails to prove that such actions amounted to
aiding and abetting Myanmar's military, legal experts say that
potentially embarrassing evidence made public during a jury trial
could embolden potential plaintiffs in other cases to come forward.
"It's similar to what happened with tobacco," Professor Sebok said.
"The very fact that they were able to see the corporate files raises
the threat value, so the next time around there would be greater
willingness to settle at some price."
While companies aggressively fight both the lawsuits and the
statute on which they are based, many have also endorsed documents
like the State Department's Voluntary Principles on Human Rights and
Security. It outlines ways to ensure security for corporate
operations and to prevent abuse — to add human rights clauses to
contracts with security firms, for example.
Some have also begun to work with organizations outside
government. Executives at the Royal
Dutch/Shell Group are working with members of Human Rights
Watch, based in New York, to improve the human rights situation in
Nigeria, where the company has been accused of assisting in abuses
against members of a local opposition group. And Unocal has met with
representatives of Amnesty International and recently allowed
observers from the Collaborative for Development Action, an
independent consulting group based in Boston, to visit the Myanmar
pipeline and study its impact on the local people.
"It's a very cynical strategy," said Arvind Ganesan, director of
the business and human rights program at Human Rights Watch,
"because you end up with companies' trying to do the right thing,
but also trying to ensure that there's no consequences for doing the
wrong thing."